A/-, B 333264 TEACHERS SALARIES IN NEWYORK CITY FINAL REPORT OF THrH CITIZENS COMMITTEE ON TEACHERS SALARIE$ LB DISTRIBUTED BY BUREAU OF PUBLICATIONS TEACHERS COLLEGE,COLUMBIA UNIVERSITY NEW YORK CITY 1927 PRICE $1.5 N Rtyiit^^^117 i^^^ * 0 ~~~~~~~~~~~~~~i- _;- ' = ' rs' / ^*- ^ ^'' ^' ^~^'' ' '' '.^ * ' '-i t '* - ".'' '......'..........t ~~~~r -' f-f,-*5.. —.v t;z;- - ~~~ 00 f ' '' ' 00~~~~~~~~E df,, -"lf rA,,,,.0tf'S,. =. _ '-..::,. -< D: o-, =; -^,V':.-;y*,;^ -^ -" ^ S. S,'.: -.. "- -.. ^ T —Si ' -, - -.= *'Ffly K I TEACHERS' SALARIES IN NEWYORK CITN FI NAL RE PO r OF THE CITIZENS COMMITTEE ON TEACHERS SALARIES ROBERT E. $IMON, CH^AIRMAN MARINODEL SMITHr, EXECUTIVE SEC$1RETARY JAMES R. MC GAVaHY, Di E:croR,. DISTRIBUTED BY BUREAU OF PUBLICATIONS TEACHERS COLLEGE, COLUMBIA UNIVERSITY NEW YORaK CITY 1927 *:.. L B 2 a -9i P.. woj", rl - - QL01 0zc(a CIT12MS COLTyr' ON TUELCHRS SALUMIS Robert R. S imon, Chairman Dr. 3. R. )IcGaug~y, Director George J. Hecht, Treasurer IMarinobel Smith, Executive Secretary Executive Conmmittee Mrs * Seymour Barnard William C. Breed Miss Martha L. Draper Eo F. Edwards John H. Finley Lee K. Freanll George J. Hecht Raymond V. Ingersoll Charles C. Lockwood John Martin Mrs. Henry Moskowitz Mrs. George V. Mullan Lason Piardy Nelson S. Spencer Percy S. Straus Mrs.* Joseph Swan General Committee Richard B. Aldoroft Mrs. Rogers H. Bacon Mrs. Francis McNeil Bacon -Charles B. Barnes Alfred IA, Barrett RobertF. Binkerd Mrs. John Blair Mrs. Linsee Blagden Mrs. H. Blaskopf Brmoe Bliven. Meyer Bloomfield Alfred Co Bossom Mrs. F rank H. Bottenus Dr. S, Parkes Cadmian Mrs. Joseph T. P. Callahan Nlewcomb Carlton Sydney S. Cohen Martin Conboy Joseph P. Cotton John Coughlin Mrs. A. W. Courtney Mrs * Frederick Lo Cranford James Curtis Mrs. Joseph Griswold Deane Leopold Denath Mrs. H. Edward Dreier Dr. Louis I. Dublin Frederick H. Echer Mrs. Abram I. ElMs Dr. John Elliott Mrs F., S. Enger Mrs. W.0 B. Evans Miss Gertrwde I* Ferre Dr. George J. Fisher Dr. Henry Fleischsman Miss Marwy Frasca H"s. Howard S. Gans Dr. C. J* Celler Mrs. Charles D~a= Gibson Rabbi Herbert S,, Goldstein I. Edwin Goldwasser Maumrice Goodman Sasual Greenbaum Mrs.* Simon Guggenheim Stanley E. Gunnison Mrs. Otto Hahn Charles Eo Heitman, Mrs. Anma, We Hecfifelder Ralph Jonas Otto H. Kahn Francis I. Ketcham Miss Mabel Hyde Kittredgs Mrs * Alexander Kohuxt Dr. Nathan Krass Mrs. James Lees Laidlaw M1rs. Charles Lested Bishop Wm, T. Manning Mrs. Andrew V. Markey TMrs. Park Mathewson Alsexader A. Mayper Mrs. 'An. Brown Maloney Darwin J. 15esserole Who J. Morris,, Jr. John Go Murray Mrs. Frederick Nathan Mrs. Karl Nelson Dr. Henry Neumann Mrs. Go O'Connor Arthur Pleydell John A. Poynton Joseph Y., Price Mrs. Miriam Sutro Price Mrs. Joseph K. Proskane? Mrs. *. H. Reh Mrs. Douglas 'Robinson S.o G., Rosenbaum Whe, Bradford Roulstone Mrs.o Anna RumphFrederick C. Schnid Mrs.o Thomas K. S cbmnck CITIZENrS' OOAWITHE ON TEACHERS SALARIES' General Coiuittee Corrtinaed Bernard Schwartz Dr.v Albert Shiels Morris Sigman Mrs. Charles E. Simnson, Mrs. William Singer Barry K. Smith Morton Stein mrs. M. I. Stich M(rs. W. E. Whitlock Stokes Mrs. Stephen Story Lionel Sutro -Mrs. Lionel Sutro Mrs. Ordway Toad. Mrs. Charles L. Tiffany Herbert K. Twitchell Mrs. Coffin Van Rensselaer Richard. Welling Mrs. Rosalie Loew Whitney Arthur Williams Dr. Stephen S. Wise TABLE OF CONTENTS CHAPTER PAGE Sumnary of a Study of Teachers' Salaries in the New York City Public Schools....... 1 I Historical ReTiew of the Teacher Salary Situation 7.................. 7 Salary Legislation Prior to 1900.......... a The Aheam Bills of 1898-1899............. 8 The Damis Bill of 1900.................. 9 The Equal Pay Campaign.....****.............. 10 The Gaynor Comaission..................... 11 Lockwood-Donohue Bill of 1920............. 12 The Ricea Bill of 1925-1926............. 14 The Friedsam Conmission................... 15 The Citisens' Committee on Teachers' Salaries Or sanised................... 16 The Second Ricca Bill, 1926............... 17 II Plan of Attack............................... 20 A. The Purchasing Power of Teachers' Salaries in 1926.................... 21 B. Teacher Salary Inoreases Coopared with Increases of Other Wages and Salaries..............******........ 28 C. Teachers' Salaries in New Tork City and in Other Large Amerioan Cities... 29 D. Economic and Professional Status of New tork City Teachers............... 50 E. Attractiveness of New York City Salaries to Outside Teachers......... 45 III The Facts Discovered ****...... o....... 47 A. Relative Purchasing Power of 1926 Salaries............................. 48 B. Increases in Teachers' Salaries Compared with those in Wages and Other Salaries............*............ 56 C. Salaries in Other Large American Cities............................... 61 D. The Professional and Economic Status of New York City Teachers............ 64 TABLE OF CONTENTS (continud) CHAPTER PAGE III (continued1 Amount of Professional Preparation *.. 66 Amount of Teaching Experience *. 72 A Study of Teachers' Dependents....... 75 Number of Children of Married Teachers. 84 The Earnings of New Tork City Teachers. 84 Ann, M-1 Rentals Paid By New York City Teachers......... 89 Expendiftres for Food.... 95 E. Attractiveness of New York City Salaries to Outsi1de Teachers....... 100 IV The Basic Assumptions............*....*.* 102 A. Comol Accepted Bases for Schedules 102 The Single Salary Schedule,... 104 Teacher Rating as a Salary Basis 107 Salary Differentials Based on Sex of Teacher.~108 AVs or Grade of Children Taught 000 109 Amount-of Teaching Experience i..... 114 Kind and Amount of Professional Preparation. 115 Ability to Pass Teachers Exmntions.., 118 The Number of Dopenden or Suze of Family...... 120 Edctonal Achievemnt of Puxpils,... 121 Number of Hours of Teaching Service.. 125 The Law of Supply andDemand.......... 125 B. Characteristics of the Plan Adopted.... 128 Characteristios of the "First Step" Proposed.....~e. 155 V Procedures Used in DeterMinia_.c schedules...e o 140 Sumry of the Principles Accepted.140 Actual Deteramintion, of Schedules....144 Sce~dule for Senior High School Teachers egggggggg i 14 Schedule far Elementary-School Teachers gee.gggge e 152 Schedule for Junior Htig School and Grades 7 to 9.......... 157 Teachers of Atypical Children 0......... 161 TABLE OF O ETS (continued) CHAPTER PAGE, V (continued) Trailing School Teachers............ 162 Senior High School First Assistants.. 163 Elementary School Principals........ 165 Senior High School Principals....... 168 Juitor Higi School Principals....... 169 Assistants to Elementary Principals.. 170 Other Administrative and Supervisory Officers....................... 172 Schedules for Special Types of Schools........................ 178 Per Diem Schedules.................. 180 VI The Proposed Schedules................................ 181 Summary of ProposeO Salary Schedules........... 182 A. Schedules for Teachers in Regular Day Schools..................... 182 B. Schedules for Principals and Other Administrative Officers of Regular Da* Schools.,............... 185 C. Schedules for Positions in Special Schools.. 184 D. Schedules for General Administrative and Supervisory Officers......... 184a E. Per Diem Schedules......................... 185-187 Cost of the Proposed Schedules 189 VII The Committee's Publicity and Outcomes of Its Study............................ 196 The Publicity Program.................. 203 Informing the Comaittee - The First Step... 205 The Committee Vs. the Plblic School Teacher and Administrator............. 207 The Mayor's Commission on Teachers' Salaries... 219 Appendix A Detailed Statistical Tables.... 223 Appendix B Schedules of Ricoa-Strauss Bill of 1926........ 252 TABLES 1WUSP,11R PAGI I C0mpUtation Of IndeZOs of Cost of Living 0 * 51 II 31stimated Cost for 1927 of Proposed Schedmies.... 191 APPENDIX III Changes In Cest of Living In lew York City from Deosember 1914 to December 1925.........000* 224 IV Index Numbers Showing the Trend in the Retail Cost of Food in the United States, By Years, 1890 to 1925 *............. 225 V Relative Purchasing Power of Teachers' Salaries of 1910 and 1925 Men Teachers of New York VI Relative Purchasing Power of Teachers' Salaries of 1910 sand 1925 - Women Teachers of New York City................... 227 VII Relative Purchasing Power of Teachers' Salaries of 1910 and 1925 - Men and Women Teachers of New York City *.......... 228 VIII Index for 1925 Salaries Based on the Purchasing Power of the 1900 Dollar *.... 229 IX Pacts Concerning Salaries in New York City and In Six Other American Cities.250 X The Professional Preparation of Now York City Teachers............ 255 APPENDIX (continued) WIMHR PAQ3 xi mOUnt1 Of Teaching Riperience of Now York City Teachers *......*.* 256 XII Dependents of Certain Groups of Women Teachers Classified as to Economic Status *... 258 XIII Relationship of Years of Teaching Service to Numbers of Dependents *............. e. 259 XIV Relationship Between Number of Children and Number of Dependents of Married Men Teachers *.. 241 XV Teachers" EanngFrom AU. Sources....... 242 XVI The Relationship of Eaning of Married Men Teachers to Number of Children In Family.......... 244 XVII Rents Paid and Sub-'Rents Received by New York City Teachers *.....**.*. 245 XVI.II Rents Paid and Sub-Rents Received by Men and Women Teachers **e~~********* 246 XX Rentals of Different Types of Housing Acemoatons. 24? XX Averaip Anmia Rentals Paid by Several Salary Groups *****.*.248 XIC IMntlyEVenne for Meals............ 249 MaII Relationship of Number of Children to Monthly Ea~ense for Meals....... 251 XXIII Rents Paid by Several Teaching Groups...........v... 251a XXV Strauss-Ricca BiLl Salary Sebedules for New York C ity Teachers.......... 255 CHARTS NUMHR; T PAGE 1 Relationship of Index of Retail Cost of Food in United States frzom 1900 to 1925 and Index of Total Cost of Living in New York City from 1914 to 1925....... *000*00 24 2 Reproduction of Copy of Inquiry Blank - olunta,27 Confidential Report to the Citizens' Committee on Teachers" Salaries *.. 2 5 Reproduotion of Duplicate Copy of Inquiry 4 Two Composite Indexes of Wages in the United 5 Index of Teachers' Salaries 1n the United States Compared with Composite Index of Waes& in the United States *.e...eeeoeee*60e*06e0*. 60 6 Per Cents of Men and Women Teachers Having Indicated Number of Persona Chiefly Dependent On Their Incomes *.....e **o *e* 77 7 Per Cents of Women Teachers Having Indicated Numbers of Persons Chiefly Dependent On Their Incomes 80 8 Per Cents of Men Teachers Having Indicated Number of Persons Chiefly Dependent on Their Incomes 81 9 Relationship of Sizs of Family to Monthly Expense for Meals. 97 10 Diagram Illustrating Proposed -Plan for Salary Schedule *. e*** **.@e 155 11 Publicity Program.... 198 12 Typical Headlines.. 204 13 Excerpts from'School and Society"? and "The New York Teacher"..210 14 Editorials. 214.215 Selected Captions........ ~... 222at 1910 Value of Teachers' Pay............ 22g Selected Editorials..............e. 222c SUMARY OF A STUDY OF TEACHERS' SALARIES f1 THE =M YORK CITY PUBLIC SCHOOLS Teachers' salaries in New York City have been in a large measure the football of politics for the last thirty years. Except as a result of mandatory legislation the Board of Education has increased the salaries of teachers only once during this whole period. As a rule, increases in salaries have been secured through the political pressure brought upon the Legislature by organizations of the teachers themselves. The salary bills which have been passed by the Legislature have been the creatures of compromise among competing groups of teachers. The test of a good salary bill has been its ability to cormand the support of the several contending factions among the teachers. The scientific soundness of the provisions of a salary bill has not been accepted as essential. The Citizens' Committee on Teacherst Salaries was organized to provide a service to the teachers and to the commrmity. The sole purpose of its organization was to determine the facts concerning teachers' salaries and to take salary adjustments out of politics by recommending fair and equitable schedules which could be accepted by citizens and teachers alike. It was not organized as a salaryraising conmmittee but as a fact-finding conmission. -1 - There were four essential elements in the Committee's organization. One was the choice of an Executive Committee of about 15 members. This group was small enough that it could meet together and discuss in detail and reach conclusions concerning the many complicated problems involved in a study of teachers' salaries. The second element was the choice of a Director who could be held responsible for carrying out the details of the technical and professional studies undertaken by the Committee. The third feature of the organization was the choice of an Advisory Committee of economic and statistical specialists to pass upon the validity of the studies undertaken by the Director for the Committee. Fourth, and very important, was the selection of an Executive Secretary who was given charge of publicity and the securing of money to finance the Committee's work. This person acted as the connecting link between the Committee and the public. The Committee decided upon and carried through a fivefold plan of attack on the problem of teachers' salaries. One study had to do with the relation of present salaries to those paid earlier in New York City, on the bases of their purchasing power. The second study was that of the comparative increases in teacherst salaries in New York City and in the wages and salaries of other employed groups during recent years. A third study was made of the bases for paying salaries and the amounts of salary paid in other large American cities, and the fourth attack upon the problem was a detailed study -2 - of the professional and economic status of the New York City teachers as revealed by 11,000 voluntary confidential reports filled out by individual teachers in the New York City public schools. The fifth study was that of the degree to which the salaries and teaching conditions in New York City were attracting teachers from outside the city. The results of these five studies convinced the Citizens' Committee that the present salaries of teachers in New York City should be increased and that certain groups should receive a larger percentage of increase than should others. The facts which led to these conclusions are presented in some detail in Chapter III and in the statistical tables in Appendix A, page 223, of the report which follows. The Citisens' Committee was soon forced to the conclusion that it could not hope to improve the conditions which were discovered by these five studies unless it made definite recommendations to the Board of Education with respect to salary schedules and bases for paying teachers. In arriving at the recommendations presented in this report the Committee gave careful consideration to many suggested bases for determining the salary of teachers. It discarded as unsound or impracticable all of these bases except four. The bases which were accepted by the Committee as valid and practicable are these: (1) The number of years of teaching experience; (2) The amount and kind of technical and professional training; (3) Under certain conditions, the ability of teachers to pass examinations set by the Board of Education, and (4) The operation of the economic law of supply and demand if it be so applied as to safeguard certain social and professional values. Among features of salary schedules which were rejected by the Conmittee were these: (1) Higher pay for men than for women teachers; (2) Higher pay for teachers of older children or of more advanced grades; (3) Higher pay for teachers rated as superior by their supervisory officers, and (4) The "family" wage, or higher salaries for teachers having greater numbers of dependents. The Committee found it impracticable to recommend the immediate adoption of salary schedules based solely upon the four factors which it accepted as sound and practicable indexes of teaching ability because of the fact that the Board of Education does not have available detailed information concerning the present status of the professional training of individual teachers. It is therefore recommended that not later than 1930 New York City school teachers shall begin to be paid solely on the basis of their professional qualifications for the educational positions which they hold. The most common name for the plan which the Committee recommends for adoption not later than 1930 is that of "single salary schedule", but this name is inaccurate and misleading. The salary situations discovered in the studies of the Committee were such that the Committee was under the nscessity of -4 - recosmending for i mediate adoption a first step in salary a4justment. The characteristics by which the first step proposed by the Committee differs from the present plan of paying teachers in New York City are four in number: (1) It is proposed that the salaries of practically all groups of teachers and administrative and supervisory officers be increased at once; (2) it is proposed that all annual salaries shall be evenly divisible by twelve (12) in order that the book-keeping of the Board of Education may be simplified and made less expensive; (5) it is proposed that there shall be small annual increments for the first three or four years of service under each schedule for teachers and that these shall be followed by substantially larger increments to all teachers who have been longer in service; and (4) the Committee proposes that a super-maximum salary shall be paid to all regular teachers who have secured as much as one year of approved professional preparation beyond the standard minimum qualifications for their licenses. In determining the schedules for senior high school teachers, married men with a wife and one child were accepted as the basic group. In the case of elementary teachers unmarried women living away from home were accepted as basic * These two schedules were accepted as fundamental and other schedules were determined largely on the basis of relative salaries paid to corresponding professional groups in other large American cities. The basic group used in determining each of the schedules mentioned above was the indispensable professional group whose living cost was highest. It was through application of this principle - that all teachers on a given schedule should be paid enough that the indispensable group could live comfortably and decently - that women living awa from home, and married men, respectively, were used.in determining the schedules proposed for elementary school and senior high school teachers. It was farther accepted by the Conittee that the average cost of food and rent should not exceed 55 per cent of the basic salary for each teaching group. The detailed schedules recomended by the Cosuittee are reported in Chapter VI, pages 181 to 195. -6 - ROSERTEB. SIMON DR. J. P. MC GAUGHY GEORGE J. HECHT MARINOSEL SMITH CHAIRMAN DIRECTOR TREASURFR EXECUTIVE SECRETARY CITIZENS COMMITTEE ON TEACHERS SALARIES 1457 BROADWAY NEW YORK CITY TEL. WisCONRma 3131 EXECUTIVE COMMITTFEE ADVISORY COMMITTEE MRS. SEYMOUR BARNARD CHARLES C. LOCKWOOD DONALD R.RBELCHER E. W. EDWARDS MRS. GEORGE V. MULLAH ~ C F W~%I~CIC DR. ALBERY SHIELS JDHN H. PINLEY LAWSON PURDY LETLRO TRANSMITTA..LLJ.. T.o the Board of Edication and to the Citizens of New York City: The Citizens' Committee on Teachers Salaries submits herewith the final report of its study of teachers' salaries in New York City. Believing that it would be a genuine service to the Board of Education, to the teachers and to the general public of New York City, and to the cause of public education, to make an impartial, fact-finding study of the vexing problems of teachers' salaries, the Citizens' Committee was organized and has functioned for that sole purpose. The work of the Committee has been f inanced entirely through the voluntary contributions of Interested citizens. It is under no obligation of any sort to any civic, professional or political organization. Early In ius work the Committee was forced to the conclusion that it would be wasteful and futile simply to report a mass of facts concerning the professional'and economic status of New York City teachers. It has there fore translated these facts into the proposals for changed bases of paying teachers and the recommendations as to definite salary schedules which are here reported. The Committee makes no claim that this report has said the last word concerning teachers' salaries in New York City. It does report~the best solutions which could be reached by a group of serious-minded citizens who have devoted some months of time and some thousands of dollars to an honest effort to serve the children and teachers and citizens of this community. The Committee hopes that this report may be the basis for an early adjustment of teachers' salaries In New York City. Robert E. Simon, Chairm~n January 17, 1927. I CHAPTER I HISTORICAL REVI OF THE TEACHER SALARY SITUATION The Board of Education is appointed by the Mayor to represent the public in administering the Department of Public Education in New York City. It is the function, therefore, of the Board of Education to establish teacher salary scheduleso But, for the past thirty years the method of financing public education in New York has led to a division of responsibility between the City Board of Estimate and Apportionment and the Board of Education. As may be seen from the following history of salary legislation the Board of Education has several times during this period proposed salary chanes for which the Board of Estimate has refused appropriations. This dual financial control has made it difficult to fix the responsibility for teachers' salaries with the Board of Education. The teachers, perforce, turned to Albany for salary adjustment, introducing their own bills for salary revision arrived at by group-bargainng amog themselves. Citizens dissatisfied with the inequitable results were forced by their interest in the welfare of the schools to participate in an investigation of an adequate salary schedule for New York City teachers. Prior to 1900 teacher salary legislation was characterised by an amasing casualness. In more recent days, other inequitable features of salary legislation resulting in general teacher unrest gave further impetus to the connmity's cooperation and led directly -7 - to the orgnization in January, 1926, of a Citisens' Conmittee to investigate teachers' salaries. SALARY LEGISLATION PRIOR TO 1900 Teachers were conscious of inequalities and inconsistencies in salary schedules for years before the so-called Ahearn Bill of 1898 was drafted. Frequently it took sixteen promotions and twenty years of service for a teacher in the elementary grades to arrive at a salary of $720 a year. Many salary schedules were in effect for the same grade. There was general confusion. The Board of Education attempted to remedy the situation by reducing to fourteen the years of experience required as the qualification for the maximum salary. But even this provision would have put the teacher of the "nineties" only on the salary level of a city street cleaner. In 1897 the Board of Education finally recommended salary increases. The new schedules became effective - but only on paper; the Board of Estimate and Apportionment refused to appropriate the necessary fnds to finance them. Had there been anything but the utmost indiffernce on the public's part, this incongruous situation could not have come about. There followed much talk of reform; more salary schedules were drafted and adopted but the money to make them operative as still not forthcoming. THE AfEARN BILLS OF 1898 - 1899 Failing repeatedly to get justice from the city authorities, the teachers took their salary problems to Albany. The State Legislature, convinced of the fairness of their case, passed the AheamBill in 1898 providing small salary increases. But again local politicians asserted their authority and prevailed on the Governor to veto the leg-8 - islation. The year came to a close with the teachers still listening to fair promises and pocketing their grievances. In the following year, 1899, a second Ahearn Bill was drafted. This legislation succeeded in gaining some public backing and was officially approved by Mayor Van Wyck. It provided minimum salaries for the first, eleventh and sixteenth years of service, leaving to the Board of Education the matter of arranging schedules with graduated increases between the points made mandatory in the bill. It sounded very well - salary campaigners felt encouraged. But, in approving the bill, the Board of Estimate decided to ignore the provisions for yearly increases. Thus, a teacher might teach ten. years at the initial salary of 9600. before she got an increase of $300. Then she received no more increases until she had served her sixteenth year. Such deliberate evasion of the expressed provisions of the legislation infuriated the teaching body. Public sentiment was aroused. Recognition of this hapless situation in which the teachers found themselves tended to dissipate the apathy which had characterised the public's attitude these many years and we find in the following year, 1900, sufficient community backing for the introduction and passing of the Davis Bill by the State Legislature. This legislation was signed by Governor Roosevelt. THE DAVIS BILL OP 1900. Nothing in the history of teacher salary legislation has had a more salutary effect on the entire teaching system than the passage of this Davis Law. Although it continued the older practice of paying higher salaries co men than to women on the theory that supply and de -9 - mand necessitated such procedure, there were several novel features of the legislation. It established for the first time in New York City a standardiation of all salaries. It initiated the present policy of paying definite annual increments. But more important than either of these characteristics was the fact that it provided fairly comfortable incomes for all the city's teachers. The salaries established by the Davis Bill permitted the city's educators to live on a social and cultural plane much higher, say school administrators, than under the schedules prevailing today. Excellent instructors from all parts of the country were attracted by the generous salaries offered. It is known that many of the city's outstanding educators and administrators came into the system at that time. This era of good salaries and good teachers might have lasted longer had the cost of living remained fairly constant; even had it increased slightly. But u:afortuntely there set in shortly after the passage of the Davis legislation, a steady increase in the cost of living and a consequent decline in the purchasing power of the dollar. By 1912, the cost of living had leaped ahead some 42 per cent. Teachers' salaries, on the other hand, remained where the Davis Bill of 1900 had put them. THE EQUAL PAY CAMPAIGN During these years there were sporadic attempts to remedy the situation but the agitation for equal pay swamped all salary revision based on the existing schedules. This so-called equal pay campaign was waged from 1900 to 1912 and terminated in the passage of the Equal Pay Bill of that date. It was a long and acrimonious fight, its advocates -10 - insisting that equal salaries be paid for equal work, regardless of sex. They attacked the Davis Bill. It had established considerably higher salaries for men. The highest pay, for instance, that a woman teacher in the elementary grades could receive was $1,)00, whereas a man teaching the same grade might make $2,160 a year. -The equal pay campaigners called upon the administration to eliminate such apparent discriminationS and before the state legislature passed the Bill, the Board of Education capitulated. It approved and adopted the theory of equal pay for men and women and in 1912 the state legislature concurred in this adoption by passing the legislation. As the outcome of its enactment little real salary benefit accrued. In fact the equal pay law did not become fully operative for men and women until 1920; THE GANOR COmmISSION The year 1910 marks a significant out-cropping of real coamnity interest in the problem of adjusting teachers' salaries. It was becoming manifest that efficient public schooling was involved in a fair settlement of the salary situation and this gave rise to the appointment of the so-called Gaynor Commission. This committee, made up of citizens who recognised the need for adequate salaries, carried on an earnest though somewhat superficial investigation. Proceeding on the theory that salaries should be made attractive enough to get and hold men in the profession, the committee proposed that salaries be paid -11 - on the basis of the sex of the pupil taunht. It recommended, for instance, that teachers of girls in high schools receive a salary of $2500 a year and teachers of boys in high schools $3000 a year, the inference being that men would teach boys and women teach girls. Proponents of equal pay - the campaign was then at its height - were quick to attack the report as violating the principle of equal pay. The plan recommended by the Gaynor Commission was considered impractical and inexpedient. But in its creation and deliberations is seen a significant contribution. It betokened an awakened and functioning community interest in public education and established the precedent of citizens organizing for the purpose of making an impartial survey of the situation. In recommending salary increases as far back as 1910, it substantiated the teacher's contention of 1919-1920 that there had long been a pressing need for salary adjustment. LOCC OD-DONOHUR BILL OF 1920. The Equal Pay Bill was followed in the succeeding eight years by minor legislation that sought exemption from its statutes for certain groups of men teachers in the system. Typical of such legislation was the provision, for example, which permitted all men in training schools at the time of its adoption to receive the salary in effect before its passage. (One of the provisions of the Equal Pay Bill had been that no teacher then in the system should suffer salary reduction..) The next really significant piece of salary legislation, however, was that incorporated in the Lockwood-Donohue Bills of 1919-1920. This -12 - legislation, in general, established the salaries that prevail today. The bill was presented by the teachers, passed by the State Legislature and signed by Governor Smith. As to the actual working out of the provision of the bill, certain conclusions are evident. The increases granted served only to relieve an acute economic situation. In no real sense did they restore to the teacher the full purchasing power of the dollar she got in 1900. Although the new schedules gave the kindergarten to 6B group a relatively larger increase, they did little to relieve the economic burden of high school teachers, principals, aad administrators. In fact the Lockrood-Donohue legislation failed to satisfy the neds of the teaching body and became inadequate as a continuing remedy for the situation. An explanation of this inadequacy may be laid to the fact that, at the time the bill was drafted, experts were of the opinion that a drop in the cost of living was inminent. It was not considered wise, therefore, to grant the teachers' requests in foil. This expected decrease did not take place. On the contrry, there had been a slight rise in the prices of essential commodities. Agitation was soon under way for new legislation granting more substantial increases. The public backing that the teachers were able to enlist in support of this legislation is a far cry from the days of '97. The spirit that animated the Gaynor Commission of 1910 is now in the -13 - ascendancy. We find interested citizens willing and eager to appear with the teachers in Albany in support of their plea for salary increases. There has come about in these last fifteen years a fuller realization that in cooperation between parent and teacher, between the public and its schools, there is not only strength but commonsense. The public is beginning to realize that the fundamental basis for paying teachers' salaries should be that which keeps the teacher in condition to render the best service to the community. If teaching standards were deteriorating, if good instructors were rapidly leaving the system and potentially strong teachers were not entering the system, if it was becoming more and more impossible to attract or retain capable men teachers, then here was a situation to challenge the interest and active participation of all intelligent citizens having at heart the interests of the child and the citizen of tomorrow. Information concerning these facts was derived from a statement issued by the Board of Examiners at this time. THE RICCA BILL OF 1925-26 By 1924 the teachers' representatives were again in Albany with a measure which attempted to restore, in part, the purchasing power of their dollar. The legislation was introduced into the State Legislature and came to-"be known as the Ricoa Bill. (See Appendix B. ) The story of what happened to this legislation is important since the vioissitudes the teachers experienced in urging its enact -14 - ment were directly responsible for the creation of the Citizenst Committee on Teachers' Salaries. The State Legislature passed this Ricca Bill in 1925. It was then submitted to Governor Smith, who vetoed the measure on the ground that it was a matter to be settled by the city authorities. The teachers came back to the city. They appealed to the Board of Education. As a balm. of a sort, the Board of Education drew up a bill asking for a lump sum appropriation of approximately $5,700,000 to meet the cost of salary increases. The Board of Estimate threw out the proposal. THE FRIESAM COMMEISSION In the meantime, Governor Smith had appointed a state-wide group of citisens, which became known as the Friedsam Commission, to study the cost of financing education. As a result of its deliberations and conclusions, the so-called Cole-Rice Bill was introduced in the 1926 legislature. If adopted, this legislation would have provided the City of New York with approximately $14,000,000 with which to meet the added expense of teacher salary increases. The Friedsam Commission had no power to investigate the salary situation and salary schedules in the various cities of the State. The teachers, on appealing to it for assistance, were told that such was the case and it was then and there that several members on the Governor's Comnittee on School Financing conceived the idea of citizens organizing to make a survey of the local salary situation. Many interested and sympathetic spectators became convinced -15 - that tne teachers were getting nowhere with the bills they themselves had drawn up. Their legislation was becoming a political foot-ball and their frequent excursions to the Capitol a matter for facetious comment. Friends of the teachers began to feel that the Albany campaigns had deleterious effects. The continuity of a teacher's classroom work was broken. The emotional stress of a salary campaign engaged in by the city's 'educators, with its attendant acrimony and ill-feeling, was thought to have an undesirable effect on teaching morale. The time was ripe for a body of disinterested, non-partisan and impartially-minded citizens to come to the aid of the teachers and the commanity, to make a thorough and scientific investigation of the whole situation. It was fitting that the suggestion to form such an organisation should have come from the United Parents Association of Greater New York Schools. A small group of non-partisan prominent citizens responded immediately to the suggestion made and the machinery for starting such a committee was soon set up, (Detail on the organization of the Committee may be found in Chapter VII). THE CITIZENS' COMI'IT ON TEADHERSt SALARIES OlGANIZED The invitation that this small group of citizens - later to become the Executive Committee of the organization - sent out to representative leaders in industry, business, labor and educational, civic and religious enterprises, read as follows: "Let us get at the facts from the point of view of all concerned - the children, the teachers, the Board of Education and the City administration". -16 - This program, in effect, governed the course of the investigation and closely paralleled the Committee's publicity policy, Citizens prominent in all walks of life responded to the call and on January 28, 1926, at the Bar Association Building, these people got together and organized the Citizens' Committee to investigate teachers' salaries. Ralph Jonas, President of the Brooklyn Chamber of Conmerce, was elected Chairman and Robert E. Simon, President of the United Parents Associationwas appointed chairman of the Executive Committee. Mr* Jonas, however, did not accept and Mr. Simon succeeded him as chairman of the Committee. Thus, with its organization and personnel completed, the Citizens' Committee set out to.learn the facts; to ascertain whether or not the teachers in the public schools were being inadequately paid and if so, how much of an adjustment was necessary to help them meet the increased cost of living. It was in no sense a salary-raising committee. It was thoroughly impartial and had no preconceived ideas. Its fife-fold plan of attack on this most fundamental and vital problem, is told in the following pages. THE SECONfD RICCAk BILL 1926 Encouraged by the Committee's activities and using its preliminary report, the teachers went back to Albany in 1926 and presented a salary bill which also became known as the Ricca Bill. It was passed by the State Legislature and submitted again to Governor Smith. Before the Governor acted upon -it, the Board of Estimate and Apport-inment of New -17 - York City petitioned him to veto the Ricca Bill and other teacher salary legislation and submitted a resolution that had been passed which authorised the Mayor and the President of the Board of Education to appoint a committee to study and report on the teacher salary situation. The text of this resolution follows: WHEBEAS there are pending before the Governor a number of bills passed by the Legislature increasing the salaries of teachers, namely Assembly introductory No. 1258, print No. 1352, by Mr. Ricca; Senate introductory No. 1154, print No. 1984, by Mr. Farrell; Assembly introductory No. 1273, print No. 1394, by Mr. Phelps; Senate print No. 708, by Mr. Antin, and Assembly introductory No. 177, print No. 176, by Mr. Feld; and WHEPEAS the Controller has reported that the bill print No. 1552, Assembly, would require an additional expenditure of $17,000,000 for teachers' salaries next year and that the city is financially unable tO meet this increase within the 2 per cent constitutional tax limitation; and WHEREAS the increases contained in the various bills are not believed to be founded on a scientific or disinterested basiss THEREFOBE be it resolved that a committee of fifteen be designated to make a thorough and scientific study of the entire question of teachers' salaries in the city of New York; five members to be appointed by the President of the Board of Education, ten members to be appointed by the Mayor, and to proceed with diligence and make a report at the earliest possible date; and Be it further resolved that the secretary of the Board of Estimate and Apportionment transmit a copy of this resolution to the Governor with a request that he withhold this approval from the salary increase bills. The result of this communication to the Governor was the announcement of his veto, at which time he cited the lack of state funds ard the failure of the Legislature to pass the Cole-Rice Bill which would have released money for school financing. -18 - Governor Smith's veto message emphasised the inability to finance the increase within the two per cent taxing limit and pointed out that the Cole Bill increasing state aid would have provided the funds outside of such limitation. The Governor also noted the proposal of the city to name a Commission to study the problem and declared that the Board of Education, not the teachers, should initiate salary legislation. He added that he was satisfied that the city administration "is strongly inclined to do justice to our great army of school teachers". After this veto, the teachers came back to the city, cooperated with the Citizens' Committee and postponed drafting any more schedules until the official Committee on Teachers' Salaries should be appointed. It was October 11, 1926 before this Committee was appointed by the Mayor and the President of the Board of Education. The work of this official investigating committee began with conferences with the Citisens' Committee. On three occasions Dr. J. R. McGaugby, Director for the Committee, presented the facts and findings of the Citizens' Committee to this group. Further discussion of the relationship of the Mayor's Committee to the Citizens' Committee and to the city's educators is to be found in the last chapter of this report. (Chapter VI7). In submitting this report, the Citizens' Committee wishes to express its great appreciation for the invaluable cooperation rendered by the Board of Education, the city's teachers, the press and interested and cooperating citizens. -19 - CHAPTER II PLAI OF ATTACK The Citizens' Committee studied the problem of teachers' salaries in New York City from five points of view. It was recognized from the very firsb that no single attack upon the complicated problem could yield all of the facts necessary for a sound solution. The Executive Committee met with the Director and the staff of specialists and decided to approach the problem from the following angles: First, a comparison of the purchasing power of the present salaries of different groups of teachers in New York City with the purchasing power of the salaries of the groups of teachers in 1910 and in 1900. Second, a comparison of the increases in teachers' salaries in New York City over a given period with the increases in wages and salaries received by other employed groups during the same length of time. Third, a comparison of the present salaries paid to New York City teachers with the salaries being paid to corresponding groups of teachers in other large American cities. Fourth, a study of the adequacy of present salaries in New York City as measured by the economic demands upon these teachers. Fifth, a study of the degree to which the salaries and teaching conditions in New York City were attracting into the public school system the abler graduates of colleges and teacher training institutions. In this chapter it is proposed to present a brief summary of the methods of collecting and interpreting the facts discovered by the use of each of the five separate plans of approach to the problem. An attempt will be nmde to show the bearing of each group of facts upon the final recommendations of the Committee. The detailed computations based on the facts are presented in Chapter V. Completely detailed tabulations of all of the data collected by the Committee will be found in the appendix to this report. A. THE PURCHASING POWER OF TEACHERS' SALARIES IN 1926 It is an accepted fact that the dollar varies widely from year to year in its purchasing power. The prices of all commodities move up and down under the influence of changing economic conditions. Family income which was sufficient to provide a comfortable living with a few luxuries and with a respectable amount left over for the savings bank in 1910 or in 1913 decreased in its purchasing power until it required the most rigid economy to meet the absolute necessary costs of living in 1920. The same quality and quantity of food which can be bought for $3.00 in one year may require an expenditure of $5.00 or of only $2.50 some other year. It is therefore without meaning or significance to compare the gross number of dollars paid to a teacher in one year with the salary of another year unless this changing purchasing power of the dollar is taken into consideration. -21 - The United States Bureau of Labor Statistics has collected detailed facts concerning the cost of living in the country a a whole and in each of many of the largest American cities since 1913. On the basis of these facts it has published in its bulletins a series of indexes of the cost of living from 1914 until the present date. The total cost of living is divided into six parts, as follows: Food, clothing, housing, fuel and light, house furnishing goods, miscellaneous. The bulletin of this Bureau issued in February, 1926,* reports that the cost of living in New York City in December, 1925, was 85 per cent higher than was the cost of living in New York City in December, 1914. Expressed in other words, it required $185 in December, 1925, to buy the same quantity and quality of the commodities such as food, rent and clothing which go to make up the total cost of living as could have been bought for $100 in December, 1914. One hundred dollars in 1914 expended upon conmodities necessary to living in New York City would go as far as $185 in 1925. Since it required eleven-sixths as many dollars to buy equivalent goods in 1925 each of the 1925 dollars was worth only six-elevenths as much as the 1914 dollar. That is, on a 1914 base the 1925 New York City dollar was worth only 55 cents. *Labor Revise, United States Bureau of Labor Statistics, February 1926t Volume XXII, No. 2, page 68. Prior to 1914 neither the Bureau of Labor Statistics nor any other agency kept records of the changing prices of all the conmidities which make up the total cost of livingo For many years before that date, hoWever, the Bureau of Labor Statistics published an index which recorded the chni cost of food based on the country as a whole. In summary, then, the Citizens' Committee had available an index of the total cost of living in New York City from 1914 until December, 1925, and an index of the cost of food for the entire country prior to 1914. In determining the purchasing power of present salaries as compared with those of 1910 or of 1900 the Committee assumed that the cost of living in New York City before 1914 paralleled the changing coats of food in the country as a whole during the given periods Chart I shows that from 1914 until 1920 the food line and the cost of living line were almost exactly the same. Since the period 1910 to 1915 was unmarked by economic disturbances, there is every reason to believe that there is little error in assuming that the cost of living line followed the cost of food line during these four years. CHA74T / REL/AT/IOV/AJ1P OF /Ii/VD Of' f/L C0J7 T OF f6OOD/W V//IA/TZ JTA47ZJ f-RM /9100 7 /9iJ5,4AD /4D9fX OF 07AL C(OT OF Z/V/A' /i//h YORiN /TY FR / f0M /9/14 7T /925 200zoo /0o _ - /70 /60 480 20 - /0O 20 900 30 - I I I I I I /900 /905 /9/0 /9/5 /920 /825...6. -D CO.r OT i/M/8G l/A/ A ~iW YORl c/rY 6 COST OF F00D /I/ Tdif /A/V7'ZT D JTAT7E 24 Table I on page 51 of Chapter III shows that it required nearly $202 in December, 1925,to go as far in meeting the cost of living as $100 would have gone in 1910. In other words, the New York City dollar in December, 1925, was worth only 49.6 cents as compared with the 1910 dollar. From 1900 to 1910 the cost of food increased more than one-third; that is, the 1910 dollar was worth only three-fourths as much as the 1900 dollar. On that basis the New York City dollar of December, 1925, would buy less than 37 cents would have bought in 1900. These facts as summarized above were used by the Committee in comparing the adequacy of present teachers' salaries in New York City with the corresponding salaries paid in 1900 and in 1910. Having determined the relative purchasing power of the teachers' salary dollar at different dates, the Committee proceeded to determine the average salaries paid to the several groups of New York City teachers at present and in 1910. The year 1910 was chosen as a date of reference because it was preceded by a period free from economic disturbances of any unusual sort and because it was unaffected by the unrest and fluctuations which immediately preceded the outbreak of the Great War, The average salaries of each group of teachers in 1910 and in 1926 were determined from computations based on the published figures in the Budget Estimates of the Board of Education for these two years These printed reports give complete details concerning the number of men and women teachers and the salaries paid to them. -25 - In 1926 there were 178 distinct groups whose salaries were paid from the general school fund. In 1910 there were only 103 groups specified in the Budget Estimate. The Committee combined these detailed schedules so that they would show the facts for groups such as kindergarten to grade 6B teachers, teachers in junior high school and in grades seven to nine, teachers in senior high schools, principals of elementary schools, and the other groips of administrative and supervisory officers to be found in the New York City schools. Prom this analysis of the Budget Estimates of the Board of Education such facts as these were made available: There were 366 men teaching in the grades from kindergarten to 6B in 1910; their average salary was $1,318. In 1925 there were 409 men teaching in these same grades at an average salary of $1,818. In 1910 there were 10,982 women teaching in the grades from kindergarten to 6B at an average salary of $913. In 1925 14,030 women were teaching in these grades at an average salary of $2,451, These two sets of facts were then put together in order to determine the purchasing power of present salaries in comparison with that of 1910 salaries. To illustrate, the average salary of $2,451 received by women elementary teachers in 1926 is equivalent to $1,215 of 1910 money since the present dollar will purchase only as much as 49.6 cents would purchase in 1910. The average salary actually received by women elementary teachers in 1910 was 4951; $1,215 is 133 per cent of j931, therefore the present purchasing -26 - power of the average salary of women elementary teachers is 33 per cent greater than that of the average salary of 1910. The records of the Board of Education do not give summaries of the salaries paid to different teacher groups in 1900. Instead, the records show the salary paid to each individual teacher in each separate school building. To compute the average salary paid to any one group of teachers would require an enormous amount of clerical and statistical work. Between 1900 and 1910 there was no change in salary schedules in New York City. If the same proportion of teachers were teaching at each level of the salary schedules in these two years, the average salaries paid in 1900 would be exactly equal to those paid in 1910. The Committee accepted this assumption as reasonable and related the purchasing power of present average salaries to that of the salaries of 1900. Since the cost of food increased one-third from 1900 to 1910, the purchasing power of present salaries on the 1900 base is only three-fourths as great as the present purchasing power figured on the 1910 base. The women elementary teachers will serve as an illustration. The average salary of this group in 1910 was $931, as stated above. If the same proportion of the group were teaching their first year, their second year and so on throughout the schedule as was the case for this group in 1910, the average salary of this group was $951 in 1900 also. The dollar of 1926 would purchase only as much as 36.6 cents would purchase in 1900. Therefore the average salary of )2,451 in 1926 was equivalent to only 98 per cent as much as the average salary of $931 in 1900. -27 - Since computing the purchasing power of present salaries on the 1900 base involves two assumptions, neither of which can be proved(1) tht the teaching groups were distributed over the different years of the salary schedule in 1900 somewhat as they were in 1910, and (2) that the cost of living line paralleled the cost of food line during this same period (See Chart I, page 24 ) - the Committee has attached little importance to its computations of the purchasing power of present salaries on the 1900 base. Some of the outstanding facts discovered in this study are reported in Section A of Chapter III. Detailed statistical tables resulting from this study are presented in Appendix A, pp.224 - 229. B. TECHER SALARY INCREASES COMPARED WITH INCREASES OF OTHER WAGES AND SALARIES Many economic and industrial agencies have collected and published facts concerning the trend in the wages and salaries of several groups of employees in public and private institutions. The Committee made a study of these facts as published in order to determine whether the salaries of New York City teachers have been increased more or less rapidly than have the wages and salaries of other groups. This relationship is discussed in Section B of Chapter III, and detailed statistical tables and charts are presented in Appendix A, page 223. In general, wages and salaries in private or commercial enterprises have increased more rapidly and the salaries of other public employees have increased less rapidly than have the salaries of New -28 - York City teachers in the last ten or fifteen years. C. TEACHERS' SALARIES IN HEW YORK CITY AND IN OTHER LALRE AMERICAN CITIES Every city and hamlet in the United States has met and solved in some way the problem of determining how much it shall pay to public school teachers. It was the Committee's belief that a careful study of the salary situations in a few of the largest cities would be of value in assisting it to reach valid conclusions concerning the New York City problem. The Director of this study visited eight such cities and made a personal study of the amounts paid to each group of teachers, of the basis upon which salaries were determined, of the relationship between the salaries of different groups of teachers within the same city and of the proportion of men and women teachers in each teacher group in each city. The facts thus secured were tabulated and studied, especially with reference to the relationships between the average salaries paid to different groups such as elementary and senior high school teachers, or teachers and principals of the same types of schools in each citye This part of the study served as a valuable check on the relationships between the schedules proposed for the different teaching, supervisory, and administrative groups in New York City. Practically every group of employees of these city boards of education is receiving a smaller salary than the corresponding group in New York City. There are no facts available concerning the relative cost of living in American cities. It was therefore impossible -29 - for the Conmittee to determine whether the purchasing power of teachers' salaries in other cities is greater or less than in New York City. The sumnary of the facts determined by this study will be found in Section 3 of Chapter III, and detailed statistical tables are presented in Appendix A, pp. 230 - 232. D. ECONOMIC A3D PROFESSIONAL STATUS OF HEW YORK CITY EACERS Early in its work the Citizens' Committee discovered that there were many siigificant facts concerning the teachers of New York City which were not available in the records of the Board of Education. The statistics which were available could not be interpreted to show the kind and amount of professional preparation which had been secured by the teachers of the system* Neither would these records show anything concerning the economic status of teachers - how much of their salaries they were expending for such necessities as rent, food and clothing, or the amount of their earnings during the regular school year and during the sumner vacation in addition to their regular salaries from the Board of Education* The Committee was therefore forced.to the decision that it had to secure the cooperation of the individual teachers in reporting such facts as were essential to a scientific determiation of fair and equitable adjustments in salary schedules. This feature of the Committee's work was by far the most important of the investigations undertaken and required heavy expenditure of time and money. In order that these significant facts might be secured by the Committee a voluntary confidential inquiry blank was drawn up and printed. Each teacher received two copies, one of which was marked "dupllcate" and was to be used by the teacher for study and to guide her in preparing in advance the information which was to be copied on the other blank which was returned to the Corzmitteeo More than 60,000 of these blanks were printed - about 30,000 duplicate copies and about 30,000 to be used for the final report. A sufficient number of each type of blank for all of the teachers and administrative and supervisory officers in each school building was tied up in a package and delivered to the principal's office by a large distributing company which was given the contract to distribute the blanks and to collect them and return them to the Committee's office. Chart II is a reproduction of the duplicate form of the blank and Chart III of one of the reports actually filled out and returned to the Conmittee. This latter blank had a serial number on the title page and the same serial number on a perforated slip at the bottom of the last page. On this slip were blanks to be filled out with the teacher's name and address. Each teacher also was supplied with two envelope s. On a fixed day all of the teachers filled out the second blank, tore off the perforated slip bearing her name, placed the report in one envelope and the detached slip in another, sealed the envelopes and returned them to the principal's office. The principal tied them up into a package ready for collection. -51 - I CHART II. REPRODUCTION OF COPY OF INQUIRY BLANK VOLUNTARY CONFIDENTIAL REPORT to the Citizens Committee on Teachers Salaries EXECUTIVE COMMITTEE Robert E. Simon, President of the United Parents Association, Chairman. Mrs. H. Edward Dreier, President of the Women's City Club; First Vice-president. Mrs. Seymour Barnard, President of the Parents League of Brooklyn. Miss Martha Draper, Vice-President of Public Education Association. E. W. Edwards, Chairman of the Committee of Education of the New York State Federation of Labor. Dr. John H. Finley, Chairman of the Educational Committees of the New York State Chamber of Commerce and of the Merchants Association. Dr. Lee K. Frankel, Vice-President of the Metropolitan Life Insurance Company. Raymond V. Ingersoll, Impartial Chairman of the cloak, suit and skirt industries. ADVISORY Donald R. Belcher, Statistician, American Telephone & Telegraph Company. Dr. Louis L Dublin, Statistician, Metropolitan Life Insurance Company. Frederick H. Ecker, President of the New York State Chamber of Commerce; Second Vicepresident. Joseph P. Cotton, President of the Public Education Association; Third Vice-president. Ex-Senator Charles C. Lockwood. John Martin, Ex-Member of New York City Board of Education. Mrs. Henry Moskowitz, Member of Board of Directors, Women's City Club. Mrs. George V. Mullan, Former member of the Board of Education. Lawson Purdy, Secretary of the Charity Organization Society. Nelson S. Spencer, Former President of the Men's City Club. Mrs. Joseph Swan, Trustee of Teachers College, Columbia University. COMMITTEE Prof. Willford I. King, Economist, National Bureau of Economic Research, Inc. Dr. Albert Shiels, Teachers College, Columbia University. FOREWORD The Citizens Committee on Teachers Salaries recognizes the major importance of the teacher's work and seeks a just and adequate compensation, commensurate with the value of the teacher's services. It believes that an impartial, comprehensive survey of existing conditions, made by experts of the highest authority under the auspices of, and presented by a group of disinterested citizens, will command the attention and respect of the community and should prove a contribution to the teachers, to the citizens and to the children of the City. The selection of Dr. J. R. McGaughy of Teachers College, a national authority on school finance, to act as director of the survey was approved by the Advisory Committee of experts and his preliminary report on teachers salaries was indorsed by them. This report was also indorsed by William R. Lasher, Chairman of the Joint Salary Committee, who characterized the analysis of teachers salaries in relation to the cost of living as the best and most effective he had seen. The result of this preliminary report, showing as it did the need for salary adjustments, made it obligatory for the Citizens Committee to go futher if it was to accomplish the purpose for which it was organized. Hence this voluntary Inquiry Blank which, in the opinion of experts, is a desirable procedure for gaining such information as will insure constructive, impartial conclusions. Obviously the experience of an individual or the experienes of a group of individuals is valueless; sound conclusions can be based only on facts-facts that show exactly how economic conditions affect large groups and to what extent they are affected. The recommendations which the experts make, if they are to be sound-if they are to be taken seriously by the tax-paying public and by legislative bodies-must of necessity be based on facts. By answering fully and accurately all the questions, you will be making it possible for the Committee to present authoritative recommendations. Although filling out the report is entirely voluntary on your part, we trust you will appreciate the importance of getting a response from every one in the educational system. In submitting this blank to you, the Citizens Committee has the approval and indorsement of President Ryan and the Administrative Staff of the Board of Education and the support of the teachers organizations. N~ 16516 A May, i926 NEW YORK CITY -S2 - CONFIDENTIAL REPORT TO THE CITIZENS COMMITTEE ON TEACHERS SALARIES You are invited to fill out carefully the following report. This report will be treated as confidential in every particular. The reason for your signature is obvious-recommendations based on anonymous returns would be unconvincing and worthless. Sign your name on the blank line indicated; tear off on perforated line and enclose the slip in the envelope which accompanies this blank. Thus, your name will not appear on the report when it is received for tabulation by the clerical staff nor will it ever be used in any connection other than for the purpose of the committee's confidential inquiry. J. R. MOGAUJoH, Director. A. Personal Data. 1. Designate sex with check mark: IMan WomalDn, i. 2. What is your residence address? -L.. Q -.I A lpJatment number? _J.QLiS 3. What is your position in the school system? (.......If a teacher, what grade or subjects do you teacht[ 4. What was the date of your first appointment in the New York City public school sstem? __.1 B. Teaching Experience. 5. Fill in the form below to show what your teaching experience has been: Dates Name of City Name or Num of School subjects taught &' -'-" "-I- N ame of CSty - 'm or Educatjnal Poiti Held i41 Ya-+.b_1_ _ a......................................._._ as-I 'a iIl /h. ' C. n L:. r7J - 4.-t^_._ -t _______1_____ _. _@_4, --- --- -_.... _.................._ --. I....................- -. ----............................................................................ C. Salary Data. 6. Fill in the blanks below to indicate the sources and amounts of your earned income for the year beginning April 1st, 1925 and ending March 31st, 1926. Sources of Earned Income: Amount received during Amount received during regular school year: summer vacation: -; --- —-- ~ — c-~-_ a. From Board of Education: (1) Salary for day school...................... (2) Salary for evening school..................._............... (3) Salary for other work for Board of Education b. Earnings from sources other than Board of Education. (Include earnings only and not the income from interest, rents, royalties, annuities, life insurance, etc.) Specify how you earned this additional income on blank lines below: (1 ),........................................ (2)...... _ (5)................... (5 ) - ------------- $- - ------------ -------— __ --- —------------- $ _....._......................................... $ —.-... I$.......... ------—........................... $.....- - -------........ $...........- --------—.......... - —...-.. -—.............$ --—...................................-............ $ - ---- --------— ~ --- — ---------------------— ~ --- —- - $ - --------------— ~ —...... --- — - -- ------------- - $ ---- - --------- ---------— ~ --- —— ~ --- —-------------- $ - -- -------------— ~ --- —------ ----------— ~ —~ --- —------- $ - ----------------— ~ --- — — ~ --- —-----— ~ --- —-— ~ --- —_ 7. What is the maximum salary for your group under the present salary schedule t?... 8. If you are receiving the maximum salary for your group, in what year did you qualify for itt {X/. If you are not receiving the maxmum, in what year will you qualify for it? — ___ ____ __ 9. What was your annual salary the first year you taught as a regular full-time teacher in the New York City public schools? $ q600 10. If you were teaching as a regular full-time teacher before entering the New York City public school system, what was your annual salary for the last year of that service T $. D. Educational Preparation. 11. Fill in the blanks below to show what has been your educational preparation beyond the elementary school grades: No. of regular Summer Session Names of Name of a cai ar Attendance Diplomas Type of Institution Instittion academic years or Deges Typeof Institution 1|attended.* No. of Total No. r Degreeds _ Sessions of Weeks ci High School. (Secondary).I.........__..... _ -'__ ------------— ' J mf --- ^ -- - --------.- ----- ------- Normal School or Teachers. J _ -_ _ - _I - __ _ _ College _ m.... - - (Teacher Training).. c~u,,,,.__. -— *- - -^ —D o College or University.... ------ - -- -- __ _ (Undergraduate) _..... _____ _____ _.. _____.............. College or University I L _ --- — - (Post-graduate) ____ eor part-time atten__ac ussg r....iaL rml a, c. a - * Keport part-tune attenaance during regular acau.um.L jas-, anu;ji ur* a.uu ncALes,,U.auu. altu..s.i,.tional parts of a regular year. Thus, a 30 hour course is I/to of a college year. E. Teaching Certification. 12. Under what license are you now teaching t..... 13. On what date did you begin teaching under this licenset _. -- --- 14. Have you taught under?her New York City licenses <.._... If so, name them here: 4 -.___ _ ^^r? jg^ s..r^._i..~._.___ u 15. Have you qualified for a license of higher grade than the one you are now using......... If so, what is your rating on the waiting listt _.-....-..-.....__. __. ___..... F. Cost of Living Data. (Certain questions are here asked in order to secure a more adequate picture of the economic status of New York City teachers. It is not to be inferred that recommendations as to salary schedules are to be based upon the data obtained.) Answer the questions of No. 16, No. 17, or No. 18 below. Do not answer more than one of the three. 16. If you are married and are living with wife (or husband) answer these questions: a. How many children have you? /. b. How many persons, not including yourself, are chiefly dependent on your incomet I __ e. What is the annual rental (or rental value if you own your own home) of the apartment or house in which you live? $ - Q.o.. If rented, does the landlord supply furnishings?JQ Heatt.._l Janitor service? I _.f How many rooms has itt I_......_ - How many of these rooms do you sub-rentt....... Do you sub-rent the rooms furnished or unfurnished? What is the annual rental derived from all these sub-rented rooms combined? $......_ Do the rentals here reported include heat and janitor service................................................................................................................................................. d. What is your monthly expense for meals? $ e. What was your total expense on account of summer schdoo ndance in 1923 - $_............... In 192441- $_ - In 1925 - $- _ 17. If you do not come under the classification of 1o. 16 above but are living at home as one of a family of near relatives, answer these questions: a. 'How many persons, not including yourself, are there in the family? —................_............................ b. How many persons are chiefly dependent on your income? _.... _.......................................... a. If you pay a definite amount as room rent, what is the amount per montht $_.................. d. What is your monthly expense for meals? $ — e. What was your total expense on account of summer school attendance in 1923 $_...._...................... In 1924 $. — __..._ In 1925 $-. 18. If you do not oome under the classification of either No. 16 or No. 17, answer these questions: a. How many persons are chiefly dependent on your income....................................................................... b. What is the annual rental which you pay (or rental value if you own your own home) for your share of the room, apartment or house in which you livet $........... Is it rented furnished or unfurnished?......_.-... How much do you receive annually from sub-rented rooms? $.... Do you sub-rent the rooms furnished or unfurnishedt -............................... Do the rentals here reported include heat and janitor service?...... c. What is your monthly expense for meals? - $........... d. What was your total expense on account of summer school attendance in 1923 - $........._...... In 1924 - $...-. In 1925! - $........-. _ -35 - CHART III. REPRODUCTION OF DUPLICATE COPY OF INQUIRY BLANK DUPLICATE COPY his is a duplicate or sample copy or te voIunuary Cnnuuen a nquiry' Biank. It is exactly the same as the blank which you will fill out later. The purpose of placing it in your hands in advance is that you may familiarize yourself with the nature of the questions to be asked. VOLUNTARY CONFIDENTIAL REPORT to the Citizens Committee on Teachers Salaries EXECUTIVE COMMITTEE Robert E. Simon, President of the United Parents Association, Chairman. Mrs. H. Edward Dreier, President of the Women's City Club; First Vice-president. Mrs. Seymour Barnard, President of the Parents League of Brooklyn. Miss Martha Draper, Vice-President of Public Education Association. E. W. Edwards, Chairman of the Committee of Education of the New York State Federation of Labor. Dr. John H. Finley, Chairman of the Educational Committees of the New York State Chamber of Commerce and of the Merchants Association. Dr. Lee K. Frankel, Vice-President of the Metropolitan Life Insurance Company. Raymond V. Ingersoll, Impartial Chairman of the cloak, suit and skirt industries. ADVISORY Donald R. Belcher, Statistician, American Telephone & Telegraph Company. Dr. Louis L Dublin, Statistician, Metropolitan Life Insurance Company. Frederick H. Ecker, President of the New York State Chamber of Commerce; Second Vicepresident. Joseph P. Cotton, President of the Public Education Association; Third Vice-president. Ex-Senator Charles C. Lockwood. John Martin, Ex-Member of KNew York City Board of Education. Mrs.. Henry Moskowitz, Member of Board of Directors, Women's City Club. Mrs. George V. Mullan, Former member of the Board of Education. Lawson Purdy, Secretary of the Charity Organization Soci:y. Nelson S. Spencer, Former President of the Men's City Club. Mrs. Joseph Swan, Trustee of Teachers College, Columbia University. COMMITTEE Prof. Willford L King, Economist, National Bureau of Economic Research, Inc. Dr. Albert Shiels, Teachers College, Columbia University. FOREWORD The Citizens Committee on Teachers Salaries recognizes the major importance of the teacher's work and seeks a just and adequate compensation, commensurate with the value of the teacher's services. It believes that an impartial, comprehensive survey of existing conditions, made by experts of the highest authority under the auspices of, and presented by a group of disinterested citizens, will command the attention and respect of the community and should prove a contribution to the teachers, to the citizens and to the children of the City. The selection of Dr. J. R. McGaughy of Teachers College, a national authority on school finance, to act as director of the survey was approved by the Advisory Committee of experts and his preliminary report on teachers salaries was indorsed by them. This report was also indorsed by William R. Lasher, Chairman of the Joint Salary Committee, who characterized *he analysis of teachers salaries in relation to the cost of living as the best and most effective he had seen. The result of this preliminary report, showing as it did the need for salary adjustments, made it obligatory for the Citizens Committee to go father if it was to accomplish the purpos for which it was organized. Hence this voluntary Inquiry Blank which, in the opinion of experts, is a desirable procedure for gaining such information as will insure constructive, impartial conclusions. Obviously the experience of an individual or the experienes of a group of individuals is' valueless; sound conclusions can be based only on facts-facts that show exactly how economic conditions affect large groups and to what extent they are affected. The recommendations which the experts make, if they are to be sound-if they are to be taken seriously by the tax-paying public and by legislative bodies-must of necessity be based on facts. By answering fully and accurately all the questions, you will be making it possible for the Committee to present authoritative recommendations. Although filling out the report is entirely voluntary on your part, we trust you will appreciate the importance of getting a response from every one in the educational system. In submitting this blank to you, the Citizens Committee has the approval and indorsement of President Ryan and the Administrative Staff of the Board of Education and the support of the teachers organizations. May, x9a6 NEW YORK CITY -36 - CILET II (contirmed) DUPLICATE CONFIDENTIAL REPORT TO THE CITIZENS COMMITTEE ON TEACHERS SALARIES You are invited to fill out carefully the following report. This report will be treated as confidential in every particular. The reason for your signature is obvious-recommendations based on anonymous returns would be unconvincing and worthless. Sign your name on the blank line indicated; tear off on perforated line and enclose the slip in the envelope which accompanies this blank. Thus, your name will not appear on the report when it is received for tabulation by the clerical staff nor wll it ever be used in any connection other than for the purpose of the oommittee's confidential inquiry. J. R MCGAUGHY, Director. A. Personal Data. 1. Designate sex with check mark: Man.. Woman2. What is your residence address?._ _._....... Apartment number 3. What is your position in the school system?.a-...-... If a teacher, what grade or subjects do you teach t — 4. What was the date of your first appointment in the New York City public school system? B. Teaching Experience. 5. Fill in the form below to show what your teaching experience has been: Grades or subjects taught Dates Name of City Name or Number of School or Educational Psiion Held._.._ - _..-................. _.__....... I__________ ___________o Edctoa _i C. Salary Data. 6. Fill in the blanks below to indicate the sources and amounts of your earned income for the year beginning April 1st, 1925 and ending March 31st, 1926. Amount received during Amount received during Sources of Earned Income: regular school year: summer vacation: & From Board of Education: (1) Salary for day school --— _ (2) Salary for evening school _ __._ (3) Salary for other work for Board of Education b. Earnings from sources other than Board of Education. (Include earnings only and not the income from interest, rents, royalties, annuities, life insurance, etc.) Specify how you earned this additional income on blank lines below: (1). ----- (2) (3) (4) (5) $.. $ - - - - - - - ----- - - ----------- $ 1.. $ - -~.....~ ~~ ---- -- -. --- —------- ------------ --- $ _ -_ $ - $ -_ _. __._ -.. $ - ------------------- --- -- - -------— ~ — $ - --------------------------------------- $ -___-__-_$_-... $ ___.. $ ___ ----_..-_ $ __._.... CBHRT II (contined) DUPLICATE COPY 7. What is the maximum salary for your group under the present salary schedulet ____ -.- _ 8. If you are receiving the maximum salary for your group, in what year did you qualify for it? __ If you are not receiving the maximum, in what year will you qualify for it? -. 9. What was your annual salary the first year you taught as a regular full-time teacher in the New York City public schools? $_.._ 10. If you were teaching as a regular full-time teacher before entering the New York City public school system, what was your annual salary for the last year of that service $ --- D. Educational Preparation. 11. Fill in the blanks below to show what has been your educational preparation beyond the elementary school grades: No. of regular Summer Session Names of Type of Institution Name of aNo of regular Attendance Di Isiui of In~tittltionacademic years Institution at No. of Total No. or Degrees ______ ______ __ Sessions of Weeks received High School......._. ___ (Secondary) Normal School or Teachers._...... _. ____.__. __._ -. College _ (Teacher Training) -_ | —~ — I _.. College or University ___ (Undergraduate) (Post-graduate) ______......12. Under what license are you now teaching... -........... 13. On what date did you begin teaching under this license? — _ ___..._.... 14. Have you taughte other Univeerk City -licenses? _____ ---.___neth _.___. If so, name them here: _ — — __ -------------—......................... If so, name them here: _ ___ a....._ __ _ _ This will be a detachable slip for your name and number of your school. -38 - DUPLICATE COPY CBHRT II (continued) 15. Have you qualified for a license of higher grade than the one you are now using. If so, what is your rating on the waiting listt _.................._ F. Cost of Living Data. (Certain questions are here asked in order to secure a more adequate picture of the economic status of New York City teachers. It is not to be inferred that recommendations as to salary schedules are to be based upon the data obtained.) Answer the questions of No. 16, No. 17, or No. 18 below. Do not answer more than one of the three. 16. If you are married and are living with wife (or husband) answer these questions: a. How many children have you? b. How many persons, not including yourself, are chiefly dependent on your income? c. What is the annual rental (or rental value if you own your own home) of the apartment or house in which you live? $..__.. If rented, does the landlord supply furnishings... Heat?... Janitor service? _ How many rooms has itt How many of these rooms do you sub-rent........_ Do you sub-rent the rooms furnished or unfurnishedt What is the annual rental derived from all these sub-rented rooms combined? $. Do the rentals here reported include heat and janitor service? _......................-.............................. d. What is your monthly expense for meals? $ e. What was your total expense on account of summer school attendance in 1923 - $................ In 1924 -$ $__ In 1925 - $ 17. If you do not come under the classification of No. 16 above but are living at home as one of a family of near relatives, answer these questions: a. How many persons, not including yourself, are there in the family? -......-............_ b. How many persons are chiefly dependent on your incomet.__....._...... c. If you pay a definite amount as room rent, what is the amount per month? $_......... d. What is your monthly expense for meals? $ —. e. What was your total expense on account of summer school attendance in 1923 $_..... In 1924 $ In 1925 $18. If you do not come under the classification of either No. 16 or No. 17, answer these questions: a. How many persons are chiefly dependent on your income? _..._ _. b. What is the annual rental which you pay (or rental value if you own your own home) for your share of the room, apartment or house in which you live? $ — Is it rented furnished or unfurnished?r How much do you receive annually from sub-rented rooms? $.Do you sub-rent the rooms furnished or unfurnished?. Do the rentals here reported include heat and janitor service? e. What is your monthly expense for meals - $ — - d. What was your total expense on account of summer school attendance in 1923? - $_ In 1924? - $ - In 1925 - $ The Committee was unwilling to base its study on anonymous reports by teachers. The perforated slip with the serial number made it impossible for those who tabulated the data from the reports to associate any teacher's name with the facts reported and yet enabled the Committee to verify any figures which seemed inaccurate. The superintendent of schools sent out a form letter to be posted on a bulletin board in each building. This letter urged the cooperation of the teachers with the Citizens' Committee, but stated emphatically that the whole matter was to be entirely voluntary on the part of each teacher. It is a very interesting fact that many teachers who did not care to cooperate with the Committee were unwilling to make this fact known to their principals. As a result, 5,000 reports properly sealed up in the envelopes provided were returned to the Committee entirely blanks A total of 11,081 were filled out by the teachers and became the basis of the Committee's study. Approximately one-third of the women teachers and twothirds of the men teachers returned the blanks properly filled out with the facts sought by the Committee. There was a higher percentage of returns from the high school teachers than from the elementary teachers. The Committee was at once faced by the necessity of determining whether the women teachers who filled out the reports were a fair statistical sampling of the whole group of women teachers in the school system. This phase of the investigation convinced the Committee that those women who had cooperated in the study were in no particular different from the total group of women teachers. -40 - The facts for the women who filled out the blanks were compared with all available facts for all women teachers. For instance, the average salary reported by the elementary women teachers was $2,475, while the average salary for all the women elementary teachers in New York City was $2,451. The average salary reported by women teachers in the junior high school and in grades seven, eight and nine was $3,140; that of the total group of women teaching in these grades was $3,120. Of the woman senior high school teachers who reported 41 per cent were receiving the maximum salary for high school teachers. In the whole senior high school group 44 per cent of the women teachers were receiving the maximum salary. Fifty-three per cent of the kindergarten teachers who replied were receiving the maximum salary while 54 per cent of all kindergarten teachers were found to be at the maximum for their schedule. Such comparisons as these convinced the Committee that it was an entirely safe statistical procedure to assume that the facts reported by those who filled out the voluntary inquiry blanks might be accepted as true of all the teachers in the school system. The Committee's tabulation and interpretation of the 11,000 individual reports was a prodigious task. Each report was gone over carefully by students in post-graduate courses in education and the facts there reported were copied in code in the margins of the report ready to be transferred to Hollerith cards. After each return had been coded and the coding checked as to its accuracy, the inquiry blanks were -41 - turned over to the Metropolitan Life Insurance Company. This company donated the services of its entire mechanical tabulation department in punching an original white and a duplicate pink Hollerith card for each teacher's report and in rumning these 11,000 cards some thousands of times through Powers electrical sorting machines to build up detailed statistical tables sumarizing all of the facts reported by each group of teachers in the whole school system. It is estimated that the opening of envelopes and the coding and punching and tabulating which were necessary required more than 600,000 separate operations. The statistical tables made by the Metropolitan Life Insurance Company were then turned over to experienced statisticians who performed the computations necessary to an interpretation of the great mass of facts which had been collected. The questions of the inquiry blank were arranged so that they divided all teachers into three economic groups. One section was to be filled out only by those who were married and were living with husband or wife. A second group of questions was to be answered by those who were not married, but were living at home - for instance, with parents or with married brothers or sisters. The third group of questions was to be answered only by those who did not belong in either of the first two groups, that is, by those who were unmarried persons living away from home. Since all persons were also required to state whether they were man or woman, the Committee had available certain economic facts for each of six distinct groups - men teachers living under each of -42 - these three conditions and likewise the three groups of women teachers. In tabulating all of the facts from the questionnaire each professional group, such as elementary teachers or high school principals, was broken up into these six classifications, making it possible to determine how each economic group compared with every other in such matters as length of teaching experience, amount of professional preparation and annual expenses for food or for rent. Early in its deliberations the Committee decided to use the two big constant items of food and rent as an index of the cost of living requirements of the New York City teachers. In so doing it had two considerations in mind. In the first place, to have requested detailed information concerning a teacher's expenses for all items of her budget would have added greatly to the length and complexity of the report. Phis would have increased very nmch the cost of tabulation and interpretation and would undoubtedly have dissuaded many teachers from attempting to fill out the inquiry blank. In the second place, it seemed reasonable to assume that the large majority of teachers do not keep a carefully itemised distribution of eqpenses. To ask such teachers to report expenses other than for the larger items of food and rent would have resulted in wholesale guessing and inaccuracy. A number of studies of the budgets of teachers had already been made. These studies were in close agreement that the typical teacher spends from 45 to 50 per cent of her total income for food aid rent. The outstanding studies of this sort were state-wide investigations in Michigan and California. A study of the expense budgets of teachers in New York State *, completed after the Committee had reached its decision, indicates that the two items of food and rent constituted almost a perfect index of the teacher's total living expense. This study offered convincing evidence that the Committee's original decision was sound and wise. The questions of the inquiry blank with relation to the expenses for food and for rent were stated in such detail as to give the most significant facts which would have a bearing upon the true economic status of the teacher. Each teacher, for instance, reported the number of rooms rented, the total annual rent paid out, the number of these rooms which were sub-rented to others and the annual income from such sub-rentals, and a statement as to whether the rooms were rented furnished or unfurnished and whether heat and janitor service were supplied. The Committee did not attempt to make a separate study of the nunber and cost of meals prepared at home and of those purchased at restaurants or boarding houses. The one question asked concerning food was - "What is your monthly expense for meals?". Married teachers were also asked to report the number of children in the family, and all teachers were required to state "The number of persons chiefly dependent upon their income". {The Influence of variations in Cost of Living of Teachers on Educational Needs, David P. Harry. To be published by the Bureau of Publications, Teachers College, Columbia University, New York City. -44 - B. ATTRACTIVESS OF NEW YORK CITY SALARIES TO OUTSIDE TEACHERS The fifth plan of attack upon the salary problem in New York City was an attempt to determine the degree to which teacher salaries now paid in New York City were serving to attract outside teachers into the local school system. One item of the voluntary inquiry blank mentioned above had a direct bearing upon this question - each teacher was asked to report the number of years which she had taught outside the public schools of New York City. From the answers to this question it was possible to determine the percentage of each teaching group which had been drawn from the experienced teachers of other school systems. To supplement this information the Committee sent a letter to many normal schools and to colleges and universities of the eastern United States which maintain teacher training departments. This letter requested information as to the percentage of their graduates who entered the New York City schools and the degree to which these graduates considered such educational positions to be desirable. There was a good percentage of replies to this letter from the heads of such teacher training institutions, but no attempt was made to interpret these replies statistically. It was discovered that a very small percentage of the graduates of such institutions were entering the public schools of New York City, The reason most commonly given, however, was not that the salaries were too low to be attractive, but that the Board of Education's regulations governing entrance -45 - were such that they dissuaded any large number from attempting to secure appointment. This chapter of the report has given in detail the five-fold plan of attack adopted by the Citizens' Committee an Teachers' Salaries in attempting to reach sound recommendations concerning a fair and equitable adjustment of teachers' salaries in New York City. Undoubtedly the Committee could have approached its problem by using another or additional procedures, One of the most obvious and valuable of these plans would have bean a detailed study of the corresponding expenditures of teachers in other cities for food and rent. As is stated earlier in this chapter, the Bureau of Labor Statistics does not have available figures on the relative cost of living in American cities* Such a study by the Committee would have required an enormous expenditure of time and money, however, and the Committee considered it unwise to attempt it. All of the other facts which the Committee needed for its guidance were found to be available as a result of some one of the five separate studies which it made. -46 - CHLPTE III THE FACTS DISCOVXED In the preceding chapter the five plans of attacking the teacher salary problem have been outlined and explained. Particular emphasis has been given to the methods of collecting and interpreting these facts.. In the present chapter it is proposed to present to the reader a summary of the facts which were discovered in each of the five studies which were made by the Committee. It is not proposed to present in this chapter a greatly detailed exposition of these facts. It is probably true that only a small percentage of those who read this report would be interested in such an exhaustive analysis. Any person who has need for such detailed facts, or who cares to verify the statements made in this chapter, will find the detailed statistical tables which are the bases of this discussion in Appendix A at the end of this report. It is not claimed that all of the facts presented in this chapter have had a direct bearing upon the reconmendations as to salary schedules. Some of the facts here presented, in particular some of those which were derived from the 11,000 inquiry blanks filled out by teachers, are presented for the sole reason that they are of interest from a social or professional point of view. So far as the Committee is able to discover, detailed data concerning the economic status of so large a mumber of -47 - teachers has never before been collected and it has accepted the responsibility of making these facts available, even though they were not of direct and immediate significance in affecting the Committee's recommendations The facts discovered in each of the five separate studies undertaken by the Committee willbe presented in separate sections of this chapter. The first section presents the data concerning the purchasing power of present salaries of teachers as compared with the salaries of corresponding groups in 1910 and in 1900. A. RELATIVE PURCIHASING POTER OF 1926 SALARIES In the preceding chapter has been given a complete explanation of the method of computing the index of the cost of living which was accepted by the Citizens' Committee. Table IIIin Appendix A, page 224gives the detail of the fluctuations in the cost of living in New York City from December 1914 to December 1925. This table shows that the cost of food in 1919 was 91 per cent higher than in 1914, that it reached a low point only 50 per cent higner than in 1914 in December, 1922,and that it rose again -o a point 65 per cent above the 1914 cost in December, 1925. In like mamer five other items of the cost of living are traced through their rise and fall in New York City throughout this eleven-year period. Clothing cost more than three times as much in 1?19 and 1920 as it did in 1914 and then prices receoea until the cost was a little less than twice as high in December, 1925,as it had been in 1914. -48 - The cost of rent and of fuel and light have followed a very different line than have the other items of expenditure in New York City during these eleven years. Table IIIof the Appendix shows that these increases have been quite steadily upward throughout the whole eleven years instead of rising to a high peak at about 1920 and settling back somewhat before 1926. In December, 1926 it recuired two and a half times as much money as in 1914 to buy a given amount of fuel and light. This table shows that when these six items of the cost of living- food, clothing, housing, fuel and light, house furnishing goodsand miscellaneous - are combined into the total cost of living in New York City, the necessary expenditure in December, 1925,was 83 per cent higher than in December, 1914. As in the case of the separate items of food and clothing, the total cost of living reached a high peak in 1919 and 1920. In those years the cost of living dollar was worth less. than 50 cents as compared with the 100 cent dollar of 1914. Following 1920 there was a gradual lowering of the cost of living until December, 1924,then rather a sharp rise to December, 1925. Table IV of Appendix A shows the trend of the retail cost of food in the United States from 1890 to 1925. This table accepts the 1915 cost of food as the basis and reports the relative cost of equal amounts of food for every other year of this thirty-six year period. For instance, the amount of food which cost $100 in -49 - 1913 oould have been bouegt for $6960 in 1890 or for $68.70 in 1900, but would have required an expenditure of $203540 in 1920 or of $157.40 in 1925o. All of the figires reported ini these two tables are tcaken from the bulletins of- the United States Rureau of Labor Statistics. Table I shows the computation which was used in fitting together the cost-of food index for the period from 1900 to 1914 and the nder of the cost of living for New York City- from 1914 to De-mber, 1925, It is explained inChapter II that the Committee,. lacking figures on the total cost.of living in New York City for the years preceding 1914, used the cost of food in the whole United States in place of the more significant facts which could not be secured. UTWAICE. OF NDESOF COST OF LIVINGCost of Livi~ in NeW York Citr Singe 1914 aMCutyWd ot of Food Before 1914 Combined into -a ISitlgle Index Based on Data, from the United States Bureau of Labor Statistics. Cost Cost Compared Comarwed Of of on on Food living 1910 Base 1900 Base 1900 68.7 -73.9 100.0 1910 95.00 100.0 135.4 1913 100.0 -10795 145.5 1914 102.4 100.0 110.1 149.0 Dec. 1924 (Now York City) - 176.5 194.3 262.9 Dec.* 1925 (New York City) - 183.2 201.7 272.9 In New lork City, December, In New York City, December, 1925, 19251, Dollar was worth 49 *57w on 1910 Base Dollar was worth 36.61~ on 1900 Base When these two indexes are put together it is shown that the purchasing power of the dollar was less than half as great in December, 1925, as in 1910. The actual index was 201*7. If 1900 is used as a basis, this table shows that it required $272*90 to buy as much in December, 1925,as could have been bought for $100 in 1900. In other words, the 1925 dollar was worth less than 57 cents in terms of the 1900 dollar* The procedure used in determining the average salaries paid to the several groups of teachers in 1900 and in 1910 and in 1925-26 has been explained in Chapter II, page 25. Table V of the Appendix reports the average salaries paid to men teachers of the different groups in 1910 and at present. In the last colum of this table the present salaries are translated into an index number. This index number is the percentage relationship between the purchasing power of present salaries and of the salaries of 1910. TableVI of the Appendix presents corresponding facts for women teachers and TableVII the facts for entire groups of teachers, men and women together. These three tables present facts of very great interest and significance. It will be noted that not a single group of men teachers or administrators were receiving a salary whose purchasing power was equivalent to the salaries paid in 1910. In Chapter V, page 177, it is reported that the salary schedule for clerical and laboratory assistants is su.fficiently high that it has attracted to these positions young men whose educational qualifications are higher than the positions really require. Table V shows that the men in these positions are now receiving an average salary whose purchasing power is almost as great as the salaries of 1910. No other group of men is being paid more than 81 per cent as much as it was receiving in 1910 if present salaries be interpreted in terms of their purchasing power. The men teachers in senior high schools are being paid 78 per cent as much as in 1910. The men who are elementary principals are receiving 69 per cent and those who are high school principals only 64 per cent as much as these groups received in 1910. An important fact should be kept in mind when considering the relationship between the present salaries of women and the salaries paid in 1910. Equal pay for men and women had not yet been adopted in 1910. Salaries of women at that time were very much lower than the salaries paid to men in corresponding positions. For that reason the index of the purchasing power of the salaries of women is notably higher than the corresponding indexes for the salaries of men. The largest group of women teachers is to be found teaching in the elementary school grades from kindergarten to 6B. In 1910 there were 11,000 of these women teachers with an average salary of $915. In 1925-26 +th number of women elementary teachers had increased beyond 14,000 and the average salary was $2,451o This present salary would buy only as much as $1,215 would buy in 1910. In other -53 - words, the effective increase in the salary of women elementary teachers was from $915 to $1,215, an increase in purchasing power of almost exactly one-third. Two other large groups of women teachers, those in grades 7 to 9 and those in junior high school, are receiving average salaries which are 21 and 30 per cant higher, respectively, than in 1910. The fourth large group of women teachers - those in senior hiai school - were receiving an average salary of $1,660 in 1910 and of $3,226 in 1925-;26. The purchasing power of this $3,226, salary was equivalent to $1,599 in 1910. In other words, present salaries of women teachers in senior high school are four per cent lower than were the salaries paid to these teachers in 1910, notwithstanding the fact that the principle of equal pay for men and women has gone into effect since 1910. This fact is interesting and conclusive evidence that salary legislation since 1910 has been moch more favorable to elmenatary teachers than to high school teachers. In 1910 the mazam, salaiy for women principals of elementary schools was only $2,500 while the maximm for men principals was 45,500. Since that time the salary of these women principals has been made the same as that of men, yet the purchasing power of their present calaries is only 92 per cent as great as that of the salaries of 1910. The only women to whb the adoptiaon of equal pay has not given salaries as great in purchasing power as were the salaries of *-5_ 1910 are senior high school teachers, principals of elementary school and teachez-clerks in elementary schools. Table VII, Appendix A shows how the present salaries of entire teaching groups compare with the purchasing power of 1910 salaries. In this table men and women teachers are treated as a single group. It shows that senior high school.teachers and both high school and elementary principals are receiving salaries which are in effect much lower than in 1910. Throughout the discussion of this section it should be remembered that the 1910 salaries, although higher than most of the salaries paid at present, were undoubtedly lower than they ought to have been. Evidence of this is found in the fact that salaries in 1910 were exactly the same as those in 1900, yet the cost of food, and probably the whole cost of living, had increased by one-third during this ten-year period. Additional evidence of the truth of this statement is to be founa in the fact that there was much agitation for increased salaries in 1910. It has been stated in Chapter II, page 28 that the Committee attaches little importance to the index of purchasing power based on the dollar of 1900. Table VIII, Appendix A reports these indexes. The reader may attach to them whatever of importance he may feel is justified. It will be noted in this table that the teachers of atypical children are the only group whose salaries retain the purchasing power of 1900. In no case are men of any one of these groups receiving a present purchasing -55 - power greater than 60 per cent of- that of 1900 with the exception of the clerical and laboratory assistants. The women elementary teacners are now receiving an averame salary whose purchasing power is 98 per centas great as that of the average salary of 1900. Again it will be remembered that there wau, wide differential between the salaries of men ana women in 1900, end that a comparison of the average salaries then and now is quite misleading. B* INCREASES IB TE CHB SALL IES COMPARl D WITH TOSE IN AGES AND 0THER SALARIES. One of the minor studies carried on by the Citisens' Committee on Teachers' Salaries was a comparison of the increases in the salai es of teachers in New York City with the-oorresponding i ncreaes i wages aud salaries paid in the trades and in other professions. The Research Department of the Federal Reserve Bank of New York has pQlblished an index of wages and salaries. A more recent index is reported by Carl Snyder in the December, 1926, issue of the "Journal of the American Statistical Association" ' This newer index includes the wages and saaries of many workers not included in the first indexo The two indexes are in quite lose agreement however - an excellent indication of the validity of each. Chart 4 shows that these indexes from 1919 to the present time have not been more than 6 or 7 points apart a maximm of three per cent of disagreement. *Journal of American Statistical Association, Vol, XXI, New Series 156, pages 466-470.__ -56 - 1CHAT 4 TVw CW/OPOJ/f //DA/X~ OF I[/46AY /A/ 7-7 ply 17/-A//fZD9 JTA47JS CENT 240 /3/9 /920 /92/ /192 /923 /924 /1925 /32 *- -- — ** OLD2 //D'VX OF k/A6E - /VtM' /A-VDE OF I%-46'Af 57 This chart shows that for the last three years wages ana salaries on the average have ranged from 2.1 to 2.2 times as high as they. were in 1913. This is another way of saying that the average worker is now receiving about $215 for every $100 which he was paid in 19153 In the preceding section of this chapter it has been shown that the cost of living in New York City is now only 85 per cent higher than it was in 1914, Table IV in the Appendix shows that the cost of food in the country as a whole increased 2.4 per cent from 1913 to 1914. It is reasonable to supposethat the cost of living in New York City mncreased by about the same amount during that year. If this be true, the cost of living in Nev York City increased only about 88 per cent from 1915 to December, 1925. In other words, $188 would have gone as far toward meeting the cost of living at the beginning of 1926 as $100 would have gone in 1913. It has just been stated that the average worker was receiving approximately $215 at this time for every $100 received in 1913. In other words, the purchasing power of wages in general was a good deal higher than it was in 19135 The preceding section of this chapter has shown that the salaries of New York City teachers do not now have as great purchasng power as in 1910, Since the average salar& of the New York City teachers as. considerably increased upon the adoption of equal pay in 1912 it is evident ~that the purchasing power of the present salaries is even further below that of 1913 salaries than of 1910 salaries. -58 - In another chart in this same report In the Jourfwtl of thi American Statistical Association, the line of increases rnthe sAlries of school teachers of the United States is reported. This -chart is here reproduced as Chart 5 This Indicates that school teachers in the United States as a whole are now receiving more than $240 for every $1OO which they received In 191~3. This is even, more important evidence that salaries of Now York City teachers have not been increased as rapi~ly as, they should have been. It would be easy to argea that the service rendered. by teachers and by other workers was of so di fferent a natu2re tha&t it wes unfair to ooaeteachers, salaries with these other waebut it w6,ld. seem reasonable for New York City teachers to 'ask that their salaries be increased as rapidly as the salaries of -the other teachers of the 'United States have, been increased..4,9. CHAR/T 5 //VDLX OF T~A' C-~'F5 JAL A/f/ES /1V COM/P4R~ED 1/Z/7-/ CA1POS/7-E /A'zDEX CET ///I~D TEA4TES 7f~ t///f-9 7YA~7ZOF 6/~46ZcG / 7y/~ /920 /19/ /19. /923 /9Z4 /2 L... -7' - rEAC/&YER -LEOD _ 0i COM^0POS/r' OF AL/L AG6L This second study convinced the Committee that teachers' salaries in New York City have not been increased as rapidly as the teachers had a right to expect, since these increases have kept pace neither with the increases in wages and salaries of other workers nor with the salaries paid to the other teachers of the United States. It is true that a study of the salaries paid to other Municipal and state employees in New York City indicates that the teachers have received greater increases since 1910 than have many of these other groups. The Committee takes the position that the under-payment of other groups of employees does not justify the continued under-payment of school teachers* C. SALARIES IN OTHER LARGE AMSICAN CITIES. The Director of this study made personal visits to Washington, Philadelphia, Boston, Cleveland, Detroit, St* Louis, Chicago and Kansas City for the purpose of making a careful study of the -teacher salary situation in each of these cities. Particular attention was given to the amounts of salary paid to each teaching group, to the percentage of men teachers employed in each group, and to the bases used in determining salaries in each of these cities. So far as the data were available he studied the salaries of men and women teachers seParately. In Washington and Boston it was impossible to secure the average salaries which were paid but even in these cities the minimum and maziam salaries of each schedule were obtained. The salary records in Cleveland were such that -61 - the average salaries of men and women separately could not be secured. In St. Louis the average salaries of men and women teachers in the elementary school could not be secured, but the salaries for all other groups of men and women were obtained. Table IX in Appendix A presents a sunmary of the average salaries paid to each teaching group in Philadelphia, Cleveland, Detroit, St Louis, Chicago, Kansas City and New York. In the last column of the table is given the total for each group in the six other cities. A stuy of the proportion of men teachers who are employed in these cities is of interest. In the senior high schools of New York City 43 per cent of all the teachers are men. This figre is the same as the average for all six cities. In like manner three per cent of the elementary teachers of New York City are men and. the percentage of men elementary teachers in the six cities is exactly the samee In only one teaching position in New York City is there a smaller proportion of men than in these other cities and that is in the Junior high school and in grades 7 to 9 - those who are teadhing on the so-called -promotion" license. The average for the six cities is 18 per cent of men teachers and in New York City it is only 12 per cent of mene With this exception New York is attracting as large a percentage of men teachers into its school system as are these other cities even if the percentage of men teachers is now a good deal less than it was a few years ago in this city. As one studies Table IX it will be noted that the average -62 - salaries of practically all teaching groups in other cities are lower than for the corresponding groups in New York City. Notable exception will be found in the case of women high school teachers, women elementary principals, men and women junior high school principals, and associate superintendents of schools in Chicago. Detroit pays the men teachers of atypical children higher salaries than they receive in New York City and Chicago pays both men and women teachers of this group higher salaries than does New York. It is most unfortunate that there are vailable no figures concerning the relative cost of living in American cities. Because of this lack the Citizens' Cormnittee was unable to draw any conclusion concerning the relative adequacy of salaries in New York and in other cities. The only evidence which it found, reported in Section B of this chapter, is that the increases in salaries in New York City have not kept pace with the increases of teachers' salaries in the country as a whole. The principal use which the Committee made of the data concerning salaries in other cities was that of studying the relationship between the salaries of two given groups of teachers in these Cities and in New York* It will be noted, for instance, that the average salary of elementary principals is almost exactly twice that of the average salary of women elementary teachers in nearly all of these cities. This was accepted as an important relationship and was used by the Citizens' Committee as a guide in recommending a schedule for the elementary principals of New York City. -65 - In lit mannr the inter-relations of the salaries of the higher administrative officers were studied carefully by the Committee in their consideration of the salaries to be recomnended for corresponding educational positions in New York City, Another important relationship which was used in checking the validity of the Comnittee's recomnendations was that of the average senior high school salary to the average elementary school salary in these cities. In half of the cities studied the senior high school salaries were more than 50 per cent higher than elementary salaries and about in half of them less than 50 per cent higher. This fact was accepted as evidence that the proposed schedule for high school teachers in New York City was not disproportionately higher than that proposed for elementary teachers. Boston is the only city visited which pays men more than women in the same teaching position, D. THE PROFESSIONAL AND ECONOMIC STATUS OF 1EW YOUR CITY TEACIHERS It has been stated in Chapter II that the Citizens' Conmittee found it necessary to ask the cooperation of individual teachers in order to secure certain significant facts of direct bearing upon salary problems. A total of 11,081 of these reports were carefully filled out by individual teachers and returned to the Conmmittee. As has been explained, the facts given in each report were expressed in code and two duplicate -64 - Hollerith cards were punched to represent these facts. The Committee has these two sets of 11,000 cards on file and would be able at a few hourt' notice to secure any combination of facts which anyone might want to know concerning the teachers-of New York City. If it were desired to find out, for instance, the different amounts spent monthly for food by married men who teach history in the senior high schools and who have three children and live in furnished apartments with heat and janitor service supplied and pay an anmual rental between $1,000 and $1,500, it would require only two or three hours,to secure this information. The Committee actually has tabulated the different amounts spent for food and for rent and the earnings from sources other than the Board of Education during the regular year and during the summer vacation for the married men teachers of each teaching group wno have no children, one child, two children, three children, and so on up to a ainr of nine children. It is not to be implied that all of the facts reported in this section of the report have a direct bearing upon the problem of determiining fair and equitable salaries. The mass of data secured by the Committee included many facts of general economic interest and significance which have never before been available for a large group of teachers. Some of these facts will be reported in this section solely because they are of interest and importance even though they have had no bearing upon the Committee's recommendations concerning salaries. -65 - Amount of Pfofessional Preparation One of the Conmittee'r main reasons for asking the individual teachers to cooperate in this study was the necessity of securing the data concerning their professional training. Since the reports filed in the offices of the Board of Education are of the date when each teacher last appeared for examination, these tacts could not be used by the Committee in their study of the present status of New York City teachersa In the reproduction of the report blank which appears on page 38 will be found the form which each teacher filled: out in reporting her professional preparation. This form made it possible for the Committee to determine how many years each teacher had spent in high school, how many years in normal schools or other teacher training institutions, how many years in under-gradxate work and how many years in post-graduate work in colleges and universities. A umary of these facts for the men and women of each of 22 teaching gZups will be found in Table X of Appendix A. A careful study of this table will be most helpful to any one who is interested in the professional status of New York City teachers. The statistical average used in this table is the median - the middle case when a given group is arranged in order of the amount of training which they have received. Another way of explaining this average is to say that half of the group has received more and half of the group less than the number of years of training reported in -66 - this table. The second column of the table which reports the average number of years of training beyond high school graduation is undoubtedly the most important single column of the table. Whenever the average reported is 0.0 years, it is an indication that fewer than 50 per cent of that particular group of teachers has had any professional training of the type specified at the head of that column. It will be noted that most of the women who are teaching in elementary schools have had the greater part of their training in normal schools and other teacher training institutions, while the small percentage of this group who are men are largely college trained..This fact holds true both of the teachers and the principals of the elementary schools. Another interesting camparison which may be made from this table is to be found in. the professional preparation of the regular senior hiig school teachers, or "assistants", as they are called in New York City. The facts concerning these teachers were tabulated separately for those who teach the traditional high school subjects such as langage, science, history, and mathematics and for those who teach what may be called the more "modern' subjects - shop work, masic, physical education, conmercial subjects and the like, The teachers of these older high school subjects are very definitely college trained. The women have an average of four years of under-graduate work in colleges and universities and almost a year of post-graduate work in colleges and universities. The men teachers of this same group have also had four years of under-graduate -67 - study and an average of 1.3 years of post-graduate work. Only a small percentage of either the men or women have had any training in nomtal schools.- Seventy-nine per cent of the women and 90 per cent of the men have had more than four years of training beyond high school graduation. The assistants who teach the modern subjects are very differently trained. Many of the women assistants have had normal school training of two or more years and half of them have also had as much as two and a half years of under-graduate study in colleges and universitiese Only 57 per cent of these women teachers have had more than four years of training beyond high school. The men of this group have had even less of academic training; only 49 per cent of them have had mor than four years of training beyond high school graduation. The average for the group is therefore a little less than four years. Only a small percentage of either the men or the women have had any post-graduate work in colleges and universities. It is an interesting fact that half of the women who are teaching in the elementary schools below the seventh grade have had no more than two and a half years of training beyond high school graduation although the minimum requirement for this group is now three years beyond high school. Of course it is easy to explain this situation - the requirement of three years of training beyond high school has been in effect a comparatively short time. lTis fact does indicate, however, that only a small proportion of these teachers -68 - have secured professional training beyond the minimum requirement for their license when they entered the public schools. As a matter of fact, 39 per cent of all the women elementary teachers now in service do not report any professional training beyond the two-year minimum which has been in effect for many years. Only 19 per cent of these teachers have had more than four years of study since graduating from high school. It was facts such as these which led the Committee to recomend the immediate adoption of a super-maximm salary for all teachers who have secured as much as one year of training beyond the minimum requirement for their license. Only ope of the 194 elementary principals who reported to the Committee had less than two years of professional training. Seventy nine per cent of the women and 86 per cent of the men of this group reported more than four years training beyond high school graduation. The women principals have received the majority of their traning in teacher training institutions and.the men principals are very largely college trained. Half of the men have had as much as one and a half years of post-graduate work in colleges and niversaties. The women principals average a half year less of professional preparation than do the men but both groups are very well trained so far as can be Judged from the number of years they have spent in professional study. On page 170 of this report the Citizens' Conmittee suggests that the position of assistant to elementary principals should be considered by the Board of Education as the best possible training for those to be chosen to fill vacancies in elementary principalships. A study of the training of the present assistants to elementary principals is convincing evidence of the soundess of this suggestion. Table shows that both the men and the women are very largely normal school trained and that 50 per cent of the men have had the equivalent of college graduation in addition to two years in normal schools. These facts indicate that a very large percentage of this group of assistants has had the combination of professional training which is most comnonly accepted as ideal for a principal of elementary school. Not only do these persons have the cultural background which is expected to be secured through years of college and university training but they also have had an average of two years of normal school training in how to teach and supervise and build courses of study in the field of elementary education. It will be noted that the men who are now elementary principals, drawn largely as they were from high school teaching, do not have a definite professional preparation in the field in which they serve except as they have secured it through post-graduate work at colleges and universities. Over and above these facts concerning professional training it must be accepted that the professional eperience of these elementary assistants is much more directly related to the elementary principalship than is high school teaching. At the end of Table X on pa^g 235, Appendix A, is presented a summary of the average training of all men and women who replied to the Conmittee's inquiry. This sumnary shows that half of the women -70 - teachers did not have more than three years of training beyond high school while half of the men have 4.9 years of training. It should be remembered that these facts do not imply that men teachers are better trained than women teachers in corresponding professional positions, On the contrary, it is almost equivalent to a statement that high school teachers have more years of training than elementary teachers - a fact which is known and accepted by every one. This results because a large proportion of the total number of women are elementary teachers while a great majority of the men who reported are high school teachers. For this summary of the table the tabulation cards have been sorted according to the economic status of the men and women teachers. It will be noted that the unmarried women living away from home have more years of training, and a larger percentage who are college graduates, than have either of the other two groups of women. This probably results from the fact that nearly 40 per cent of the women teachers in high school live away from home while only 20 per cent of the women elementary teachers are so situated. It is entirely impossible to discuss in detail the many other interesting and important facts which are available in this study of the professional training of those in the public schools of New York City. Careful study of Table X will reveal many others which cannot even be mentioned in this section. Amount of Teaching Experience Another phase of the Committee's study which was based on the reports of individnal teachers was of great importance in helping the Committee to determine the distinguishing characteristics of the different teaching groups. This was the report of each teacher concerning the number of years of her teaching service. The teachers reported the total number of years taught in the public schools and the number of years taught outside the public schools of New York City. The interpretation of these facts resulted in two important discoveries. One was the perfectly obvious conclusion concerning the amount of teaching experience, with its implications as to the ages of the teachers in different groups, and the other was authoritative information concerning the percentage of teachers who had never taught outside the New York City public schools. This second fact was of great significance in describing the different teaching groups. Table XI in Appendix A, page 236, reports these facts for all of the regular day school teachers of the city. In each case the-. total teaching group is divided into the six economic groups mentioned above, three of women and three of men, The average reported in this table is again the middle case - half of each group had more and half had less teaching experience than the figure reported as the average. This table also reports the range of the middle 50 per cent of each -72 - group as to their teaching experience*. In the top line of the table, it is shown, for instance, that the 4,569 women of the elementary school who reported to the Committee showed a range from 4.7 to 9.0 years in the middle 50 per cent of the group. In other words, onefourth of this group of women have taught less than 4.7 years and another fourth have taught more than 19 years, The middle amount of teaching service for this group was 9.7 -years. The last colurm of this same table reports some startling facts. Eighty-seven per cent of the women and 89 per cent of the men elementary school teachers have never taught a single day outside of the public schools of New York City. -That this situation is a very serious one is indicated by the fact that a very large proportion of the younger women in this group are classified in the economic group of those who are unmarried and living at home and that 95 per cent of this group have had their total teaching experience in the public schools of New York City, indicating that this percentage is undoubtedly increasing. This provincialism of the New York City teachers is not quite so marked in the case of teachers of junior high school and grades 7 to 9, In this group, however, 85 per cent of the women and 78 per cent of the men teachers have had their entire teaching experience within the public schools of New York City. In the senior high schools there has been decidedly less of this inbreeding, yet fifty-seven -73 - per cent of the women high school teachers and 66 per cent of the men have had no teaching experience outside of the city public schools* In discussing the Conmittee's procedure in determining salary schedmles, in Chapter V of this report, it is pointed out that in the case of elementary teachers, umrried women-living away from home and in the case of senior high school teachers married men were chosen as the basic groups The facts concerning the amount of teaching experience presented in Table indicates that these groups whose living costs were highest are likewise the groups who have the longest periods of service in the New York City schools. The women elementary teachers who are unmarried and living away from home have an average of 19 years of teaching experience. One-fourth of them have been teaching more than 27 years. The married women of this group have an average of 13 years of teaching experience while the unmarried women living at home have an average of less than seven years experience. In the case of the men teachers in senior high school the marriedL men have been longest in service, one-fourth of them having taught more than 24 years and one-half of them more than 15 years. In all groups the unmarried teachers living at home, whether men or women, are the youngest in point of service. The youngest of all are the unmarried men who are teaching in elementary -74 - school. Half of them have less than three years of teaching experience. It will be remembered that many of these young men are college graduates, as reported in the preceding section of this chapter. These two facts, taken together, indicate quite clearly that these young men are not Permanent members of the elementary teaching group. Very evidently they are using teaching in the elementary schools as a stepping stone to some other profession or business. The first column of Table XI presents some interesting facts concerning the economic status of each of these groups of teachers. More than half of the women elementary teachers are unmarried and living at home. Less than one-fifth of them are married women. About 26 per cent of these women elementary teachers who made reports to the Committee are unmarried women who are living away from home. Included in this group are many of the older teachers, as was mentioned above, and approximately one-third of them have had some teaching experience outside of the public schools of New York City. The oldest group, in point of service, of the regular teachers of New York City is found to be the women teachers in junior high school and in grades 7 to 9 who are unmarried and living away from home. Half of this group has had more than 24 years and a fourth of them more than 50 years. The youngest group is made up of the men elementary teachers who are unmarried and living at home. A StuAy of Teacherst Dependents One of the questions of the voluntary report made by individual teachers was, "How many persons, not including yourself, are -75 - chiefly dependent on your income?" Married teachers who were living with wife or husband were also asked: "How many children have you?" The tabulation of the answers to these two questions yielded tost interesting and significant facts concerning the economic status of the Tew York City teachers. Seventy per cent of the women and 91 per cent of the men teachers reported one or more persons beside themselves who were chiefly dependent upon their incomes. Table XIII of Appendix A, page 259, sumaarises these facts for all of the men and women who are teachers in the regular day schools of the city. Chart 6 expresses these same facts ingraphic form. P~R C~17J OF/f Iz~ AND 140t~/V- T-4AC#1R-P /aW1AXG I/D//A(47L2D AN6V/BL O EPJA3//IS (//F/ZY DZf2D'A'Z 1~ OV/ Z~E/f9 /A/&C/tZSJ /00 96 88 80 72 b 64 | 56 4J K 24 1 /6 8 O / z 3 4 5' 6 7 8 9 IU1B/ t7 OF PItP6'S0 C/ZttFLtY D~EP/PlDtVT' O/V /IVrOIPs.......... VOM~LV 'TAACN/E/tP * * * *,, Aim^ r~^/yzw 77 In general, it may be stated that men teachers have one or two more persons dependent upon their income than have women teachers. This table shows for instance that 70 per cent of all the women have one or more persons dependent Upon them while 70 per cent of the men have two or more dependents. Thirty-six per cent of the women have two or more dependents and forty per cent of the men have three or more dependents. Eleven per cent of the women have three or more dependents while 18 per cent of the men have four or more dependents, and six per oent of the men have five or more dependents. The Cosmittee tabulated the data concerning dependents in Imuh a way that it might study the variation in number of dependents with the age of the teachers upon whom they were dependent. Since the Committee did not presume to ask teachers to report their age, it was neessary to use the number of years of teaching experience as an index of age. Each group of teachers was divided into three sub-groups according to the number of years they had taught - those who have taught less than ten years, those who have taught from 10 to 25 years, and those who have taught ore than 25 years. In the case of women teachers it was found that the number of persons who were dependent neither increased nor decreased appreciably with increasing years of service. Chart 7 shows this fact in graphic form. It will be seen that the three lines which represent these groups of teachers of different ages very nearly -78 - coincide throughout.Table XIII of the Appendix, upon which this chart is based, shows that 35 per cent of the youngest group, 29 per cent of the oldest group and only 25 per cent of those who have taught from 10 to 25 years have no dependents at all. Three per cent of each of the three groups has three or more dependents. Quite a different situation is found in the case of men teachers. The younger men - those who have taught less than 10 years - do not have so many dependents as have the two older groups of men. There is a slight falling off in the number of dependents in the case of men who have been teaching more than 25 years but the decrease is a very small one. Chart 8 shows graphically these facts for men teachers just as Chart 7 pictures the variation in the number of dependents of women teachers. It will be noted that the inside line of this chart is that which represents the facts concerning the younger men. -79 - C/ARFT 7 PEA Ce/ITJ/ Of WOMA/I/ TEAECEfgAJ X/X4/AV/ /ID/CAT4ZD iW//&B6LJ 0/-Pf/?j9AS C//IF7ZY DP/R~DZA/ O/1 //E/IR /A/ewVCOMj ZA4T/a/vflP BLET$VEA E 'Z- EAfX OF JNf/4CE A/tV66YilfB OF D1PtYDtVwrJ BAJ'FD OTI 6966 W0OMfV TCef CS O F 7t4 Czy d /'E CYr MW4Y /?926 /00 36 88 "I ZN 'N N 72 6 -56 40 24 /6 8 0 /I 3 4 6 6 7 8 9 A/M6tA OF PfRo' CO/ FLYz DP' le BAT04- O/VCwaAf-........ PyOM~H /lYNG 0-9 Y~A-S T~SC7i W//l/6 L ~XP&FRI~/H1 - -D -- - - - -- WODAf/V ',4 '//V6 O-d'9 XZ,4t- TZ.,44vY,-6' ~X?/L''C LZ 6ICD. --- WOhM/ZE 4//,6 /0-25 Y*R':T~4C///'6 YfER/P~C W-OMEN AV4/iVS 4Y4OtT T/Y,4A 25 Zs rzFA4Xw cXrP'/~C' 80 C//ART 6 Pf? C~f/VTJ 0/FcIWN TACfRJ Y,4 8/A/v6 //VZD/CA4Z~D /v/lMB OF/ PRZ50/OA/ CW/izy Y DPK Z 1DZAT 0/ TF/IE/ //VCOM(& J R-L/AT/ ONJ/I/P Bff-4AI/V Y[ARS OF JR/YfIP'/CAVD WAVMBt9f OF S7'D~TS BA~ED OA/ /76-4 AI/Z rTAC/AiW OF /W~PV YORt C/rI WAY /1926 /00 36 88 80 F 72 Z 5 2 /6 8 0 I % % I 0 / 2 3 4 6 6 7 8 9 VAUBME OF PL-IPON'J eW/zFLLY D PL-NDA/T ------ A. ~A/ - /AVI/A6 0-9 YEAR9 OF 7O-AC ///6 'XI 4P9/8Re/ LzE6END -* * - *- z ^/Ay#4A /0-2r- Y-A4S Oa 7~,4C///G6 PE^P/lC~f _ _ V M,4 AV/9IG AO'6' MOW 7'A 25 YESA4 OF 'PZf//CIZ 8/ The next table in Appendix A, Table XII on page 28, shows the facts concerning the dependents of the several economic groups of teachers. Each of these groups is again sub-divided according to number of years of teaching service. It is an interesting fact that the married women report fewer dependents than do either the umarried women who are living at home or those who are living away from home. Thirty-four per cent of the married women do not report any dependents, Twenty-nine per oent of the unmarried women living at home and 27 per cent of the women living away from home do not report any dependents. Exactly 36 per cent of each of these three groups of women report two or more dependents. A slightly larger percentage of the married women report three and four and five dependents. As would be expected, the facts are very different with respect to men teachers. Ninety-seven per cent of the married men report one or more dependents but 25 per cent of the unmarried men have no dependents at all, The unmarried men who are living at home have more dependents than unmarried women living at home but there is practically no difference in the number of dependents of the men and women who are living away from home* A study of the number of dependents of the women teachers in each type of regular day school is reported in Table XIIof Appendix A, page 238. This table shows that the women elementary teachers have fewer dependents than other women teachers, but the difference is not great. The married women who teach in senior high school have a greater number of dependents than any other economic group of women teachers, Twenty-nine per cent of these married women have three or more dependents. Not more than 11 per cent of any other large group of women teachers have so heavy an economic burden. This table makes possible a very interesting comparison which has a direct bearing upon the Committee's salary recommendations. In computing the schedule of salaries for elementary teachers the Committee accepted unmarried women who were living away from home as the basic group. In the determination of the salary schedule for senior high school teachers, married men who have a wife and one child were chosen as the basic group. Table XII shows that 75 per cent of the women elementary teachers living away from home have one or more dependents, 38 per cent have two or more and 10 per cent have three or more dependents. In comparison with these figures, 50 per cent of the married men who teach in senior high school have three or more dependents - that is they have one or more dependents beyond the equivalent of a wife and child. Twenty-three per cent of these men have four or more dependents and nine per cent have five or more dependents. In other words,nine per cent of this basic group of married men teachers have the equivalent of a wife and child and three or more additional dependents, while in the basic group used in figuring the elementary teachers' schedule, 10 per cent have a total of three or more dependents beside themselves. The Citizens' Committee accepts this fact as important evidence that its choice of these two basic groups was entirely fair and impartial. -83 - Number of Children of Married Teachers A study of the replies to the question, "How man children have you?" shows that 74 per cent of the married men and 43 per cent of the married women teachers have one or more children. Seventy-seven per cent ofthe married men who teach in senior high school have one or more children, 46 per cent have two or more and seven per cent of these high school men have four or more children. One teacher reported a total of nine children. Fifty per cent of the married men teaching inr elementary school have no children. Seventy-eight per cent of the married men who teach in junior high school and in grades 7 to 9 have one or more children. Forty-seven per cent have two or more and nine per cent have four or more children. Twenty-three per cent of all of the married men who are teaching in the regular day schools have one or more dependents in addition to their wives and children. The number of children reported by married men of each teaching group is shown in Table XXIt Appendix A, paws 251. The anings of New York City Teachers An important phase of the Committee's study of the reports made by individual teachers was concerned with the earnings of each group from sources other than the Board of Education. These earnings were reported under two headings: (1) earningL from sources other than Board of Education during the regular school year, and (2) earnings from outside sources during the summer vacation. The Committee attaches especial importance to the first of these items on the theory -84 - that those who depena upon additional sources of income during the regular school year are in a very real sense part-time teachers. It should be remembered that the facts given in this section do not include the earnings of regular day school teachers who also teach-in evening schools, The income from evening school teaching is a part of the money paid to the teacher by the Board of Education. In this study, as in all of the studies o0 teachers relating to their economic status, the married men teachers were classified into ten groups according to whether they had no children, one child, and so on up to the maximum of nine children. The Conmittee finds that P8 per cent of all of the men who are teaching in the regular day schools are earning money from sources other than the Board of Education during the regular school year, Only 11 per cent of these men reported earnings from such sources during the sunmer vacation. Further analysis of these figures reveals some very interesting facts. Twenty per cent of the men elementary teachers have sources of income during the regular school year in addition to their teacher's salaries. Those who are thus employed have an average income from outside sources of $415 a year. Nine per cent of these men earn an average of $197 during the sumner vacation. In the case of the ken who teach in grades 7 to 9 and in the junior high schools, 31 per cent of the whole group earn an average of 4"680 a year in addition to their regular salaries during the school year -85 - and eleven per cent of these men find employment during the smme r which yislds them an average of 622; The average earnings of this group of men from all sources, their regular salaries included, amrts -to $3,270 per year. Twenty-nine per cent of the men teachers in senior high school have earnings from outside sources during the regula.r year. These earnings average $7351 a year for those who have such outside employment, Twelve per cent of these senior high school men earn sa average of $506 in the suzner, 'fhe average income of these men from all sources is $3,722. The percentage of married men who have outside -employment during the 'regular year is slightly higher than the.correspondihg percentage for iumarried men. In the ease of these married men there are 21 per cent of elementary school teachers, 32 per cent of the Junior high school and 7th to 9th grade teachers, and 33 per cent of the senior high school teachers who have other income during the regular school year. TableXVI in Appendix A, p.244, reports the earnings of these married men who have different mabers of children. It is there shown that 50 per cent of the married men in SJnior high school who have threechildren are on part time and earn an average of $613 during the regular wchoel year in addition to their salary. Thirtyb-five per cent of these men who have two childre '.and 34 per cent of those who have one child earn an. average of $6*b and $510. respectively during the regular year. -86 - In the senior high school the largest percentage of the married -men with children who hare outside employment during the regular school year is the group having two children. Thirty-nine per cent of these men are employed and their average earnings are $692 a year. Thirtyb seven per cent of those who have three children, 34 per cent of those with four children, and 29 per cent of those having one child are also en part tim in the sense in which that term is employed in this discussion. Those with four children hare an average income from outside sources of $886 a year. Those with three children average $1,316* The earnings of the other married men who teach in senior high school and have found outside employment range from $600 to $850 per year. A careful study of Table XV will yield many more interesting and significant facts concerning the eonomic status of the men teachers of New Tork City. A much smaller percentage of the women teachers have earnings from outside sources either during the schorl year or during the snuer vacation. Only six per cent of the total group of regular teachers have earnings from outside sources during the regular year and two per eent during the summer vacation, as compared with 28 per cent and 11 per cent, respectively, of the men teachers. In general, the income of the women teachers from such sources is less tHan that of the men teachers. Five per cent of the women elementary teachers earn an average of $130 during the regular ryar. The other 95 per cent report no income except from the Board of Education. The same percentage of the women teachers -87 - in junior high school and in grades 7 to 9 report additional income but the average for the group is $724 a year, a greater amount per person employed than was reported for the men of the sae teaching group, but there was six times as large a percentage of men who had found outside employment. The largest percentage of women teachers who have an income from outside sources during the regular school year is in senior high school. Thirteen per cent of these women earn an average of $321 per year, The full detail of the earnings of women teachers from all sources is reported in Table XV of Appendix A, page 242' Approximately one-fourth of elementary school teachers earn an average of $1,100 in addition to their salaries during the regular school year, and approximately 15 per cent of them earn an average of $750 during the sumrer. Only seven per cent of the women elementary principals have axy earnings during the regular year beyond their regular salaries from the Board of Education. Those who are employed average about $1,100, as do the men principals of elementary schools. Of the 275 teacher clerks who reported to the Committee, only 18 have outside employment during the regular year. These 18 persons, approximately seven per cent of the total, average a little less than $38n a year in addition to their regular salaries. -88 - Of the 176 men and 54 women attendance officers who cooperated with the Committee, eight men ana one woman average between $700 and.800 during the school year in addition to their Board of Education salaries. One man reported summer earnings of $1,000 and another of $150. None of the others of this group reported anv income during the sunmer except from the Board of Education, Facts such as those reported above were secured for many other groups of administrative and supervisory officials. It is impossible within the space available in this report to present detailed facts concerning them. Anraal Rentals Paid B New York City Teachers In other sections of this report it is stated that the Committee accepted the annual expenaiture for the two items of food and rent as an index of the total cost of living of New York City teachers. In order to secure valid figures concerning the cost of rent lt was necessary to make a detailed t-udy of many separate factors. Some teachers lease more rooms than they need for themselves and their families ana sub-rent to others the extra rooms. Some of the rentals reported are for furnished apartments and some for unfurnished apartments. In some cases heat and janitor service are supplied, in other cases the teacher herself must stand this expense Recognizing in advance the complications which would be involved, in the confidential report blank sent out to individual teachers the Committee asked for detailed information concerning these different factors in the. annual expense for rent. -89 - These reports were then tabulated in such a way that the effect of these variables could be studied. It was assumed that the men and women teachers who were living at home with parents or married brothers or sisters would not as a rule be held responsible for the rent.ng and sub-renting of the family home so these economic groups were asked simply to report the amount of the arTmual rent which they themselves paid. On the other hand, married teachers and those living away from home were asked. how many rooms they leased and at what annual rental and how many of these rooms were sub-rented and the amount received from such sub-rental. A total of 3,158 women and 1,311 men in these two groap of the regular teachers in the day schools reported in fall the facts concerning the rentals paid and received. Only 285 of the women teachers and 114 of the men teachers, less than 10 per cent in each case, reported an income from sub-rentals. The other 90 per cent of these teachin groups occupied in full the rooms which they rented. A separate study was made of the rentals paid by the 10 per cent and by the 90 per cent of these two groups. These facts are reported in Table XVI, Appendix A, page 245 * This table shows that approximately aix per cent of the married women teaching in elementary schools sub-rented rooms. The averag rent paid by this six per cent was $1,047 per year and the average income from subrented rooms was. 420 a year. The average annual rental paid by the 94 per oent of these married women elementary teachers who do -90 - not sub-rent rooms was $910. One-fourth of this group paid a annual rental of less than $750 and one-fourth of more than $1,091. Between eight and nine per cent of the women elementary teachers living away from home reported income from sub-rented rooms. The average rental which they paid was $947 and they received an average of $356 a year from sub-rentals. The women of this group who did not sub-rent rooms paid an annual rental of $691. The average rental paid by the married men of this group who do not sub-rent rooms was $989 per year. Half of them paid between $800 and $1,200 annually for rent. Table XVIII in the Appendix mmarises the facts concerning the rentals paid and the sub-rentals received by all of the men and women teachers of the regular day schools* It shows that the 114 mn teachers who sub-rent rooms pay out an average of $1,279 a year and receive back an average of $418 a year in sub-rents. The difference between these averages is $861 a year. Twent-five per cent of this group of men pay less than $1,008 and receive not to exceed $258 a year in smb-rents, leaving a net difference of $750. In the case of the 285 women teachers who sub-rent rooms, the anmmal rental paid out is an average of $1,021 and the anmnal income from sub-rented rooms is $396. The difference in these averages is $625. This seems to be a fair figure to represent the net cost of annual rental for those who undertake the responsibility of sub-renting a part of the space which they lease since the middle 50 per cent of -91 - the group pay between $820 and $1,400 a year and receive back between $240 and $615 in sub-rentals* The Committee's study of the relative amounts of rent paid for different types of housing accomodations was confined to the married men teachers on the ground that this group was sufficiently homogeneous that their housing accomodations would be reasonably comparable, A total of 1,171 married men reported the rentals which they paid for different types of accomodations. A little less than three per cent of these men rented famished rooms or apartments which were heated and had janitor service. The average annual rental paid for such acoomodations was $9435 Nearly 40 per cent of the total group rented unfurnished rooms or apartments with heat and Janitor service supplied. The annual rental paid was $869 on the average, a different of $76 per year. It is highly probable that the married men with small families, for instance those who are young and newly married, are much more likely to rent furnished rooms and apartments than are those whose families have been longer established. It is not to be implied from the figures given above that it costs only $76 more per year to secure a furnished apartment than to secure an unfurnished apartment of the same size, The third entry in Table XIXis of particular interest because it undoubtedly represents the animal rentals paid by those who live in houses in the suburbs rather than in city apartments. The description "unfurnished, not heate no janitor service", applies accurately to -2 - this particular group. It seems clear that teachers living in the suburbs are paying about $200 per year more for rent thanare those who live in city apartments. The same caution must be used in comparing these figures as in comparing tne rental paid for fumrlsne and unfurnished apartments* It is undoubtedly true that teachers with the greater number of children will be more willing toundergo the troubles and loss of time of commuting daily than would those without children or with one or two very young children. Probably the average rental of $1,113 paid by this group secures a greater number of rooms than do the average rentals paid for city apartments The Committee analysed the rentals paid by New York City teachers from two other points of view, In the first, reported in Table XX of Appendix A,page 248,all the groups of teachers and administrative -and supervisory officials of the school system were thrown into a single group and redistributed into 11 groups according to their ammal salaries The average annual rental paid by each salary group was computed, In this table no distinction is made between men and women teachers but the facts are reported separately for (1) the men and women who are married; (2) all those who are unmarried but living at home; (3) for all those who are living away from home* It is found that married teacners who receive between $1,500 and $2,000 are paying on the average $800 a year for rent but that those of the same salary group who are living at ho _95 - oontribute less than $400 a year towrd the family rental. Those of this group who are living away from home report an average rental of $566 per year. With one or two exceptions it is found that the higher -salaried Aroups pay higher' rentals, but that tle proportion of the salary which is taken up in rent decreases as the salary increoses. For instance, married teachers whose salaries are less than $2,000 spend an average of $800 a year for rent, a full 40 per cent of the total salary. On the other hand, those whose annual earnings exceed $5,000 expend only 25 per cent of their income on this item of the annual budget. The same rule holds in the. other economic groups* The-Committee's other analysis of annual rentals divided the total number of teachers according to their teaching positions, and studied the men and women of each of the three economic groups separately. Table XXIII, Appendix A, page 251,reports these facts for the teachers in the regular day schools. The most striking fact brought out by this particular study is the large proportion of teachers who are paying less than '200 a year in annual rental. In the casa of all of these teaching groups, half of the economic groups made up of either men or women who are unmarried and living at home contribute less than $200 per year to the family rental. In the case of the elementary teachers these teachers living at home make up so large a proportion of the total teaching group that the average rental paid by the wnole group is less than $200. -4 - The valid explanation of this figure must be that the families of these teachers donate annually the equivalent of $500 to $800 toward their living expense. It is interesting to note that the married men who teach in the elementary school expend an average of only $664 per year for rent while the unmarried women living away from home expend $707. Unmarried men living away from home expend much less - an average of only $475 per year. This table shows that the married men who teach in Junior high school spend an average of a little over $900 per year for rent while those married men who teach in senior high school spend 0100 a year more for this item. Other interesting facts will be found in a study of this table in Appendix A. Expenditures for Food It will be recalled that the second item which was accepted by the Committee as a part of the index of the total cost of living was the cost of food. Table XXI, Appendix A, page 249, reports a complete analysis of this expense on the part of all of the groups of teachers in the regular day schools. The women teachers of each group are sub-divided into the three economic groups used as a basis of discussion in the other sections of this chapter. The men teachers were divided into the corresponding groups, but the married men were further sub-divided according to the number of children in the family. -95 - Chart 9 expresses in graphic form the greater cost of food in families with the greater number of children. The lowest line of this chart cuts off below it the quarter of the married men with each specified number of children whose expende for food was lowest. The highest line of the chart cuts off in like manuer the quarter of each group which spends the 'greatest amount for food. The middle line divides each of these groups into exact halves* It is an interesting fact that these three lines ar* almost exactly parallel although they are curved. The chart makes it clear that the proportional increase per child is greater in families having one or two' children than.in families with three or four children. The fact that all of these lines rise more rapidly when there are more than four children in the family is probably accounted for by the tact that in large families such as these at least some of the children will be old enough that they consume almost as much food as an adult, -96 - C/ART 9 RfLSA/ 0AN//P 0/- / IZ OF /4AM//LY TO MO/AHLY [XAE//SVJ /2/ // LZAZLS BAJED OA{ 9EPOr's BVY 77,f 5A MI/RIE/fD M~7A / r, gt6 /N JEA/0A /s/6W JcHOOLG OF AEOWY YOAf C/RY I/92S -/92 6,,.,..,_ 1/6 /14 w - /,'25crcc/7/e / m m ~ /372 t3 /20 N /08 96 48 J6 N 36 Cj I I / -. / 'V I V V V0 V~~~~~~~ V0 If I I F /2 0 O / i 3 I A/VM8OAe OF0 C /'/LD-/W/Y a 7 8 9 97 As in the case of rentals paid it will be noted that the higher salaried groups expend more for food. Since the Committee was umable to make a study of the amounts and.quality of food consumed, it is not able to state whether the higher salaried groups are extravagant or whether the lower salaried groups are spending less than they should for this important item in the cost of living. It will be noted in Table XX(,Appendix A, pae 249, that the men and women elementary teachers spend almost exactly the same amounts for food. Half of the women expend between $38 and $79 per month and half of the men-elementary teachers between $34 and $80. The vaerage expenditure of the women is $52 per month and that of the men $53 per month. It is significant to note the increased cost of food in the amilies of married teachers with greater numbers of children. Practically none of the married men teachers in elementary school have more than two children. The average monthly expense for food for those without children is $75, for those with one child, $82 and for those with two children $98 per month. -98 - This same rel ationship will be noted in the groups of inakried msen teachers in junior and senior high schools, In the Junior high school the married men without children report an ayereago of.,79 per month. In fa~milies with one child the monthly *KzPalvO is $10 greater and another $l0 per month 1s added for the second chill. In the senior high school the sase general relation-ship boldes, except that married nan with one child and married msen with two children have the same averapv expenditure for meals $100 per lsonth. This equality of averages undoubtedly results from the terndeny to report, as an even 3)l00 amounts an~ywhere from $95 to $105. I st'tzl of the range of the middle 50 per cent of food expnses for thewe grottps shows the usual tendency for increasing cost with an inbreasing number of children. It will be noted that the increase -in *onthl.Y expendture because of one child in the family is usually bonsiderably =or* than halt of the increase on ac count of two children. This tftdency was noted -in Chart 9 in the more rapid rise of the three lines at the left side of the chart, The Ooamittee accepted the c~eplOtW cozisistenicy of these food expense figures as a most important wtidoihoe of the accuracy of the reports of the individual teachers. Subh ooiplete agreesn of these trend lines in all groups of teachers would have Uben mostextraordinary or entirely impossible if the Ininvttdal. teachers had -'9 - silmply made wild goesses concerng their food expenses. E. ATTRNCTIVENESS OF NEW YORK CITY SALARIES TO OIJTSI]E TEAHERS The Citizens' Cormmittee secured two types of evidence As to the attractiveness of public school positions in New York City -to teachers frami outside the city. One of these was a series of statsa~t from teacher training institutions outside the city conoellaing -the tendency of their grad~uates to seek positions in New York City. -The second type of evidence was the statistical facts concerning the percentage of New York City teachers who have had teaching experience outside o'f'the city. Replies to the letters of inquiry addressed to heads of teacher training institutions were in general agreement that very anall numbers of their graduates were entering theNew York City schools. The reason most commonly given-, however PTve the Committee no reason for concluding that present salaries were too low to -be attractive. Vast of these educators agreed that their graduates were staying eVA of New York City becaUSe itL seesad to be the admInistrap. tive policy of the Board of Eduation to discourage their entranaee,. SosQf the specific points mae in these letters referred to the administrative re'd tape in connection with the teacher examination, system, and to the fact that these ezamnnationp often were held at such a tine'in the scebol year that neither training aceboo students nor teachers in service were able to preaent themselves, for exuazzlination. -M100-1 The second type of evidence secured by the Committee concerning the drawing power of public school positions in New York City has already been presented in some detail in the preceding section on the years of service of the several groups of teachers. It was there stated that only 12 per cent of the women and 11 per cent of the men who teach in the kindergarten and first six grades have ever taught a single day outside of the public schools of the city. In the largest group of young teachers in the elementary schools - unmarried women living at home - only five per cent have had teaching experience elsewhere. Eighty-one per cent of all the women and 72 per cent of all the men teachers in the regular day schools have taught only in the New York City public schools. The Committee does not feel Justified in asserting that this small percentage of teachers drawn from outside the city is proof that present salaries are too low. This situation could have resulted, as was implied by the letters from heads of teacher training institutions, from the negative policy on the part of the Board of Education with respect to the encouragement of strong candidates from outside the city. -101 - CHAPTER IV T BASIC ASSUMP I The preceding chapters of this report have discussed in some detail the history of teacher salary legislation for New York City, the organisation of the Citizenst Committee on Teachers' Salariest and the Committee's five-fold plan of sttack upon the problem. In Chapter III are presented summaries of the facts secured in each of the five studies carried through by the Committee. It was a long step between securing such facts as are reported in the preceding chapter and' the determination of actual salary schedules to be recommended to the Board of Edncation. The whole theory and practioe of schedule making had to be studied carefully and the wisest possible choices had to be made in the light of unique local situations. The Committee does not deny that some other body working just as honestly and open-mindedly might have recommended plans of procedure quite different than those which are here recommended, It is the unction of this chapter of the report to present and explain the theories and assumptions which were accepted as basic in the Committee 's procedure. A. COINLY ACCEPTED BASES FOR SCHEDULES The Committee 's study of the payment of teachers in-other cities showed that the salary of an individual teacher may be based -102 - pon almost any possible combination of several objective and subjeotive measures of her professional qualifications and of the importance of her professional position. Among the objective measures in use are: (1) the nmaber of years she has taught; (2) the imaber of years of academic or professional preparation she has secured; (3) the grade or type of school in which she teaches; and (4) her seax Commonly used subjective measures -.that is, those hich are determined on the basis of the personal opinion of authorized representatives of the Board of Education - are these: (1) her efficieny rating, or teaching-quality rating as determined by one or more of the supervisory or administrative officers of the school system; (2) her ability to pass, or to obtain certain scores, on examinations which may be written or oral, or an actual teaching test, or any combination of these three; and (5) the kind or quality of academic or professional preparation sbh may have secured, as is required under regulations demanding certain amounts of "approved" training. Another basis for determining salaries which is sometimes proposed and defended is that of the number of children or the number of dependents which a teacher may have This idea seems to be borrowed from southwestern Europe where some hundreds of thousands, of miners especially, are paid a family wags. It is argued by some that the economic law of supply and demnd should be the sole consideration in paying salaries to teachers: that boards of education should set up definite minimum qualifications -103 - for each type of teaching position, and then should go out into the market and employ at the lowest possible salary those who meet these professional requirement s Others defend the payment of teachers upon the basis of the importance of the service which they render. Still others would hare teachers' salaries take into account the number of hours in the teachor's school day, or the number of weeks in her school year. Probably there is no problem demanding solution by the American public today in which there is a greater confusion of conflicting theories and praotices than in this field of determining salary schedules for public school teachers. The Single Salary Schedule In recent years a considerable number of Boards of Education have adopted a new plan for determining the salaries which shall be paid to teachers. The schedule of payments based upon this plan is called a single salary schedule. This name is somewhat misleading, but has been generally accepted. In January, 1925, six cities of more than 100,000 population - Denver, Des Moines, Minneapolis, San Antonio, Spokane and Youngstown - were paying teachers on a single schednle. There were more than 100 others in which this plan was in effect. Denver is a notable example of the successful operation of this newer plan. This plan has been in operation four or fire years and all of the teachers of Denver, both elementary and high school, accept the plan most enthusiastically. -104 - The outstanding difference between the single salary schedule and all other schedules in common use is its acceptance of all teaching positions, whether in the kindergarten, the seventh grade, or in the senior high school, as of equal importance and as worthy of equal remuneration. Under this plan differentials in salaries are determined solely on the basis of the professional qualifications of the individual teacher. In general practice only two measures of professional qualifications are taken into consideration: First, the number of years of academic and professional preparation beyond high school graduation; and second, the number of years of teaching experience. It is entirely possible to add to these fundamental measures some others such as the score which a teacher receives when her teaching efficiency or ability are rated by superior officers, or a requirement that her professional preparation be of a certain quality as well as of a certain quantity - that is, that she shall have a certain minimum amount of "approved" professional preparation for the position which she holds. Probably the soundest principle which may be defended as a basis for determining the amount of a teacher's salary would be her actual teaching efficiency - a measure of how well she actually does the job which she is chosen to do and held responsible for doing. If this indefinite quality or characteristic could be measured objectively, as age or weight or height can be measured, probably most persons would agree that school administrators could throw into the discard all con-105 - sideration of professional preparation, years of teaching experience and other commonly accepted determiners of teachers' salaries* If such an instrnment for measuring teaching ability were available, boards of education could then set up qualifications solely in terms of the individual's score on this measuring device, and then could determine the salaries which they would pay on the basis of the workings of the law of supply. and demand with respect to prospective teachers who could measure up to these standard qualifications. Such an objective measure of teaching ability is entirely lacking. It is entirely possible that it will not be available for many years to come. We do not yet agree as to just what the product of public education is, or ought to be, in any objective sense. We do know that pupils in school acquire certain skills, like ability to read and to spell and to perform certain operations with numbers. We know that there are many bits of information, facts concerning history and geography and literature, a few of which any individual pupil learns to know. In addition to acquiring these skills and facts there are many most important ideas and ideals and character traits which we have a pious hope will in some way grow out of each child's schooling. Important as they are in society, these ideals and traits are vague and not yet subject to objective measure, yet it is the instilling of these vague and unmeasurable qualities which most people would defend as the most valuable service of the teacher. -106 - If, then, we are as yet entirely unable to measure the product of education, it becomes almost absurd to assume that we can now measure the teacher's efficienmy in turning out that product. Even if we could measure the product, other difficult problems would face us in measuring teaching efficiency, for the home and the church and all the rest of society are playing their parts in developing the pupils who are in school. It will not be enough to be able to measure how much or how many of these highly desirable ideals and characteristics each pupil secures in a given length of time; we must also be able to measure the exact part of the total which each teacher contributes. Teacher REat as a_ Salary Basis The nearest approach yet made to a measurement of teaching ability is that of having each teacher rated by one or more supervisory officers. All of the arguments presented above prove to us that such a rating is almost purely subjective - a matter of personal opinion on the part of the person who does the rating. When such a rating of teachers is allowed to play even a small part in determining what a teacher's salary shall be, the natural feeling and knowledge on the part of all teachers who are rated low that the rating.is personal and partial and unscientific more than offsets in loss of morale any possible gain which might otherwise attach to the use of this measure for administrative purposes. There is nothing-inherent in the theory back of the single salary schedule which would prevent the incorporation of teacher rating as one of the bases to be used in determining salaries, but it -107 - is probably unwise, especially in a very larg city, to incorporate this entirely sbjective easure in any plan for the determination of teachers' salaries. Lacktin any objective measure for determinng teaching efficieny, the Citizens' Committee was faced by the same problem that has had to be solved by every Board of Education - that of determining the best possible basis or combination of bases which may be accepted by the public and by the teachers themselves as an index or indication of this Tag and umasuurable quality called teaching efficiency or teaching ability. At the beginning of this chapter we have already recited a list of six or seven such indtes, We will discuss them here in same detail as to their possible sound use as indcators of teaching ability as the rating of teachers has already been discusaed. S_._ Differentials Based on Sex of Teacher It will be accepted withot argument that the sex of the teacher bears no inherent relationship to that teacher's ability to teach. Undoubtedly eertain teaching positions are best adapted to women teachers, and certain other teaching positions can best be filled by men, but there is no sound evidence that sex in itself bears a direct relationship to teaching ability. As society is at present organised the law of supply and demand does work in such a way. that what seems to be the same quality of teaching service can be secured -108 - at a lower market price by employing omen teachers, The Committee ruled out any such consideration at once, however, because the law of the State of New York requires that differences in salaries shall not be made on aocount of the sex of the public school teacher. A or Grade of Children Taught One of the most controversial questions in the whole complicated problem of determining sound bases for teachers' salaries is that as to whether teachers of more advanced grades should receive salaries higher than teachers of equivalent qualifications who are teaching younger children. The precedent for higher salaries to teachers of more advanced grades has been well established and it is still the practice of the large majority of boards of education. One defense for this traditional practice is that teaching older children is more difficult. Another is that it requires greater intelligence or a rarer type of teaching ability on the part of the teacher, Another defense is that it is a more important and valuable service to society. Another is that it requires more specific and extensive training. The Board of Superintendents in the public schools of New York City have defended this practice on the grounds that the indivitdal teacher should secure promotion in the system by beginning her teaching service in the primary school, preferably in the second grade, and, after some experience there, by qualifying for a license as a teacher of the seventh -109 - to the ninth grades, this to be followed by a teaching position in the senior high school. The license upon which teachers serve in grades seven to ine is actually named a "promo.ion" license. It seems to be the belief of the Board that second grade teaching is less difficult than any other teaching position and that the inexperienced teacher is more likely to succeed reasonably well in that position. It seems to be the belief of the Board, also, that for a teacher to devote her entire professional life to teaching in the primary grades would result in professional stagnation and lack of growth. All of the arguments here presented.in defense of higher salaries for teachers of older children are balanced by arguments which would lead one to conclude that this practice is entirely unsound and undesirable. It may well be contended that no on0 teaching job is in itself any harder than any other teaching job. For a teacher who enjoys working with young children, second grade teaching is undoubtedly easier than teaching in high school would be. On the other hand, one whose interest and liking is for children of high school age and whose professional training is in the field of high school teahing would find teaching in the primary grades very mch more difficult than in the higher grades. It is entirely true that faulty administration and organization, either from lack of funds or for any other reason, may makr of the teaching of high school English, for instance, a matter of dreary drudgery. If the teaching lead is such that countless hours -110 - mat be spent in reading and criticising themepapers, such work may be more difficult than teaching inthe primary school even under the worst administration. That aDn teachng position is truly and intrinsically more difficult than any other teaching position is an argument most difficult to defend, however, In like manmer, it is difficult to defend the theory that the teaching of older children requires more intelligence or a combination of qualities more rarely found' among teachers and that, therefore, the law of supply and demand justifies lower salaries to teachers of younger children. Such an argument might have had some weight thirty or forty Years ago when primary and elementary ednuation mere largely formal and the teacher mus in large meadsre a disciplinarian whose primary function was to force children to conmnt to memory oer.tain facts and processes. In modern education, with our greater knowledge of the operation of the laws of learning, it is certainly trut that no teacher requires greater intelligence or a rarer combination of desirable human qualities than does the primary and middle grades teacher. It is now accepted that each child differs from evel other and that a thoroughly good.teacber of primary children =mst be able to diagnose the strengths and weaknesses of each individual child if she is to adjust to him the sort of eduoational program which will make him develop so that he may "live most and serve best", as Dr. Jesse F. Williams has said. So far as the Committee was able to discover there is no sound scientific evidence that the kinds of qualitieas or the degree of intelligence which make good high school teaching are any rarer than are the -111 - qualities and types of intelligence which characterize really good elenmntary teachers. The defense of lower salaries for teachers of younger children on the ground that the service rendered by these teachers is less important and less valuable than that of other teachers nast be accepted by any thinking person as entirely unsound and untrue. The exact opposite my well be argued. It is the elementary teachers who are teaching all of the children of all of our citizens who are patr6ns of public schools. Ftrthermore, they have responsibility for all these children when they are at the most plastic and impressionable age. On the other dn a relatively large nmuber of these children never enter high school at all. All of the education and training for citizenship which these pupils will ever receive in the publip schools mxst be received at the hands of teachers of the elemmntary schools. To rate this service as less important or less valuable than that given in any other part of the public schools would be entirely absurd. The fourth argument listed above is that teachers of older pupils require more extensive and specific traning. This argament is of undoubted importanc and significance. It is a fact that irofessional eduoators have not yet deteimaied just.at kinds and amints of academio and professional training are most worth while for any given group of teachers. It may well be true that high school teachers may require two or three years of study and training at the college level in the subjects which they are to teach in high school plus the sam amount cr -112 - professional training which good elementary teachers need beyond high school graduation. Until we have positive evidence, however, with respect to the most effective kind and amount of academic and professional training for any given group of teachers, we shall have no sound basis for paying higher salaries to teachers of older children for the sole reason that they hare chosen or have been assigned to work with these older pupils The theory that teachers should serve an apprenticeship by practicing on the children of the primary grades and should consider an appointment to teach older children as a promotion most be based on the assumption that teaching in the primary and so-called grammar grades is unworthy to be considered as a profession in itself. The Citizens' Committee on Teachers' Salaries has no desire to put itself into a position so radical and absurd. It is the Committee's belief that any teacher whose natural likings and aptitudes are peculiarly adapted to teaching children of the second grade, for instance, will find all of the inspiration and satisfaction which she may crave in learning each year how to teach better and more artistically the pupils of the second grade. It is the opinion of the Committee that she will find all of the challenge to professional growth to which she can possibly react if she makes herself a student and practitioner of second grade teaching. The theory and practice of modern edcation are changing so rapidly that no worthwhile teacher can stagnate in her position simply because -llS she is not fbrced to begin all over again and adapt her teaching techniques to the very different requirements of seventh grade or high school pupils. Amount of Teaching Experience Up to this point the discussion in this chapter has presented the arguments which were accepted by the Citizens' Committee in their decision that New York City teachers should not be paid on the basis of their rating by superior officers, on the basis of sex, or on the basis of the grade or type of school in which they teach. Two of the indexes which are commonly accepted as indications of teaching ability are yet to be discussed. These are (1) the number of years of teaching experience which the teacher has had and (2) the amount of professional or academic preparation which she has secured, Both of these were accepted by the Committee as valid and desirable indexes upon which to base teachers' salaries. There cre at least two sound arguments in favor of granting a teacher a certain number of yearly increases in salary for the sole reason that she has had an increasing number of years of teaching experience. In the first place, it is undoubtedly true that most teachers become better teachers with each successive year of experience for some years after they enter the teaching profession. A scientific study of this relationship between experience and teaching efficiency indicates that the maxinmm of teaching efficiency is most often reached after seven or eight years of teaching. It is entirely probable that most teachers who depend entirely upon their classroom experience to improve their teaching technique do -114 - not become better teachers after teaching for as much as ten years. The teacher who is a better teacher after twenty years of experience in the classroom than she was at the end of eight or nine years is almost certain to be one who has secured additional professional preparation during her teaching experience* Kind and Amount of Professional Preparation The second basis which the Comnittee accepted as a good indication of teaching efficiency was that of the amount of professional preparation which a teacher had secured. Practically every board of education and every thinking person accepts professional training as of genuine worth in improving teaching ability. The fact that every city board of education in the United States requires two or three years of training before a candidate is accepted as eligible to undertake teacher's examinations in order to cualify for appointment in the public schools is unanswerable argument in support of this universal belief. Candidates for positions as high school teachers are almost without exception required to have four years of training beyond high school graduation. In New York City those who would attempt to qualify for positions as elementary teachers must have three years of professional preparation beyond high school. The fact that this eligibility requirement has been changed very recently from two years to three years of training for elementary teachers indicates that the present board of education and Board of Superintendents accept professional preparation of a certain amount as absolutely indispensable to effective teaching service. Another indication of the general accept-115 - ance of the validity of this index of teaching ability is found in the fact that tax payers are allowing their representatives to appropriate annually millions of dollars of public money for the m intenance of state, county and city training schools for teachers, The Citizens' Conmittee feels that its position is unassailable when it accepts the amount of professional preparation as an excellent index of teaching efficiency. It would be absurd to deny that there are individual teachers who have had no professional preparation at all who can teach better than other individuals may ever be able to teach even though they have four or five years of intensive preparation. In like manner, thereare undoubtedly many individuals with two years of training beyond high school who are better teachers than are certain teachers who have had three years of training. But it must be remembered that the Committee was forced to accept the fact that there is not available any direct and objective measure of this intangible quality called ability or efficiency in teaching. The Committee faced the necessity, as stated above, of finding the best possible index or combination of indexes which would serve as an indirect indication of this most,desirable quality or ability. Even though some teachers with two years of professional training teach better than do others with three years of training, it is undoubtedly true that the percentage of teachers with three years of training who will be really effective in their classroom work is decidedly greater -116 - than the percentage of effective teachers to be found among those with two years of training. That no teacher may now enter the New York City public schools without at least three years of professional preparation is sufficient evidence of the truth of this statement. The Citizens' Committee has taken the next step, and an entirely logical one, in assuming that four years of training will make elementary teachers moro effective than will the absolutely indispensable minimum of three years, and that five years of preparation after high school graduation will produce better high school teachers than will the required minimum of four years. The super-maximum feature of its proposed schedules is no more nor less than the Committee's method of expressing its belief in the truth of this statement. Some of those who accept three or four years of preparation as an indispensable qualification for candidates for teaching positions tend to oppose any plan of paying teachers which would encourage them to do professional studying while in service as teachers. It is claimed that teachers who are taking courses desert the school building the instant the day's session comes to an end, - that their larger interest is in their professional studies rather than in their work as teachers. No evidence has yet been secured to show whether teachers who are doing professional studyiLg leave their school buildings any more promptly than do those who are going shopping, or to the movies, or to afternoon social engagaemnts. -117 - The Conmittee attaches some importance to the claim that not all of the so-called professional courses are of practical value in the improvement of teaching. It also believes that teachers should be required to undertake and carry through well-balaned programs of professional study. For these reasons it proposes that super-'maximum salaries shall be granted only to those who have secured the required amount of "approved" professional training. This recommendation implies that the Board of Education shall authrize some competent body- possibly the city board of examiners or the state department of education - to pass upon the kin and amount of training which will be accepted as of value. Ability to Pass Teachers Examination The Committee, then, accepted the number of years of teaching experience and the amount and kind of professional preparation which a teacher had secured as two bases to be used in determining salary schedules. A third measure which it accepted without serious question was the ability of candidates for teaching positions to pass the sort of qualifying examinations which are set by the board of examiners. It was only indirectly that this measure entered into the consideration of the Citizens' Coomitee, since the Committee was concerned only with the recommendation of fair and equitable salaries for those already accepted as qualified teachers. The ability to qualify as a teacher - that is, to pass the examinations set for candidates - is, of course, a prerequisite for anyone who is to receive a salary as teacher. -118 - Throughout its deliberations the Committee considered that it was not within its province to reconmend policies to the Board of Education. Since the licensing of teachers is carried out in accordance with policies determined by the Board of Education, the Committee did not enter into that phase of the teacher problem, At one stage of its deliberations it would have been entirely within its jurisdiction for the Committee to have recomiended.an extension of the use of examinations asa basis for determining salaries. This stage was reached when it was considering the proposal of a super-maximum salary for teachers of high professional status. The Committee recommended simply that teachers who qualified for super-maxiimm salaries should have one year of "approved" professional preparation beyond the minimum or standard requirements for their particular licenses, The Committee has left it to the Board of.ducation to determine what shall constitute "approved" professional preparation. It is entirely within the spirit of the Committee's recommendation that this approval should depend upon the ability to pass examinations upon the subject matter of the courses submitted for approval by the candidates for super-maximum salaries. The provision of such qualifying examinations would, of course, imply that the Board of Educaotion did not care to accept at face value the professional credits granted by teacher training institutionsl The Nxumber of Dependents or Size of Family It is sometimes proposed that teachers who have many persons dependent upon their incomes should receive higher salaries than those who have a smaller number of dependents. This so-called "family wage" has been seriously considered for adoption by some boards of education, notably that of Mt. Vernon, New York. The idea seems to have been borrowed from southwestern Europe where some hundreds of thousands of miners are paid according to the number of children in their families. It is the belief of the Citizens' Committee that the number of dependents which teachers have must be taken into consideration in determining salary schedules, but only to the extent that the uniform salary paid to all teachers with and without dependents shall be high enough that the indispensable teaching groups who have dependents may live oomfortably and respectably. To allow differentials in salary on account of varying numbers of dependents would most certainly defeat the very purpose which the proponents of this plan hope to achieve. It can be accepted that school costs are bound to increase if public education is to make notable progress. There is no sound reason for forecasting a lightening of the financial burden occasioned by the support of the public schools. Boards of education will be obliged to buy at the lowest possible market price the 'kind and amount of teaching service required. Under such conditions married men with children would find it increas -120 - ingly difficult to secure employment in competition with young men and unmarried women who are equally well qualified to do the actual job of teaching. The direct argument against the family wage is just as important. Teachers should be paid upon the basis of their teaching ability, measured as objectively as can be done, and not on the basis that boards of education are charitable institutions or are in some peculiar way to be held responsible for administering the Stateos obligation to provide for its own progress and perpetuity. Educational Achievement of Pupils Another indication of teaching ability or efficiency which is sometimes recommended as a basis for determining, at least in part, the amount of salary which a teacher should receive is that of the achievement of the pupils who are taught. This measure has the advantage of being entirely objective since it can be based on modern standardized tests whose scoring does not depend at all upon the personal opinion of the one who does, the scoring. The Committee accepts it as true that no other indication of how well a teacher teaches is so objective as these measures of pupil achievement* There are many reasons which caused the Committee to reject the use of such measures, objective though they are. In the first place, the administration of such a device would be most expensive* It would be necessary to give these standard tests to every pupil -121 - in every classroom at least once or twice each year. It would not be fair to measure the achievement of the pupils in only one subject, even so important a suvbect as reading, and to base a judgment of the teacher's efficiency upon that one measure. There would most certainly have to be given a battery of four or five tests, or one long and complicated test measuring achievement in four or five school subjects. A second even greater objection is inherent in the present status of standardized tests in the field of education. While there are mawr excellent objective tests for reading, arithmetic and spelling and such drill or "tool" subjects, it is accepted by all authorities in education that there are not now available objective tests for measuring the intangible but most important products of public education such as ideals, attitudes, growth in character, and ability to appreciate the beautiful. The practical result of basing a teacher's salary upon the achievement of her pupils in fields which can be measured objectively would be that the sensible teacher would at once turn her whole energy to ceaseless drilling of her pupils and teaching them the kinds of facts and skills which can be measured. The Citizens' Committee did not care to accept responsibility for any such by-prodhct of their recommenaations with respect to teachers' salaries. A third objection to basing teachers' salaries upon this or any other measure of pupil achievement or pupil status is the accepted fact that the teacher is not the only agency at work in educating the child. Each child is being educated at home and on the street and in -122 - all his contacts with all persons and things each day. No one has yet devised a method by which one may determine what part of a child's growth may fairly be credited to the school or to any one teacher. Still another difficulty is that one teacher's class may be much more able to achieve because they have been born brighter, or because they come from a neighborhood in which all of the community ideals exert an influence favorable to serious and painstaking school work, There are statistical devices to protect the teacher of dull children from being penalized because her children are dull, but the Committee knows of no device for protecting from injustice a teacher of bright pupils who come from a conmnity in which high achievement in school work is not rated as an important mental and social asset, umber of Hours of Teahing Service It is seriously suggested by some that the number of hours per year which a teacher spends in the classroom should bear a direct relationship to the salary which she receives. Two applications have been made of this theory. One is to compare the salary received by a teacher with the salary or wages received by others the hours of whose working day are greater than the. hours per day during which schools are actually in session, and whose working days per year are many more in number than are the days during which schools are in session. On the basis of such a comparison it is easy to appear to prove that the teacherss salary is much higher than the salary of corresponding groups of workers. Such a comparison is illogical and unfair unless it be frankly accepted that teaching is a part-time job, that the teacher has no professional duties which make demands upon her time outside of the hours when school is actually in session, and that she is free to turn to other gainful employment each evening, on Saturdays, and during the summer vacation. The second application of this theory concerning the working hour of a teacher is that there should be a differential between the salaries of two teachers, if one of them nas a longer school day than the other. If the Citizens' Committee had accepted this theory as sound, it would have reconmended lower salaries for the teachers of kindergarten children than for teachers of sixth grade children since the younger children are in school a smaller number of hours each day. It is the Committee's belief, however, that any teaching position in the regular day schools is a full-time job, and that the recommendation of salaries based on the length of school sessions would imply that teachers are to punch time clocks like workers in factories and that they are to secure other employment for every hour of the working day when school is not actually in session. Wholesouled devotion to teaching as a public service would seem to be impossible under such conditions. -12& The Law of Supply and Demand It is recommended by some that teachers' salaries be determined solely by the workings of the economic law of supply and demand. It is proposed that boards of education set up minimum qualifications for each type of educational position for which they have to provide, and that each board then go into the "market" and secure teachers who meet these qualifications at the lo*est salary at which it can obtain the number of teachers needed. The theory of this position is unassailable. The Citizenst Committee accepts this theory in principle, but it is convinced that there are certain administrative safe-guards which must be provided in order to make it work in a practical way. It is accepted, of course, that boards of education must establish minimum qualifications of such a kind that those candidates who meet the requirements will be thoroughly competent and efficient teachers. Having established such qualifications, a board of education is under the moral necessity of buying the kind and amount of service which it requires at the lowest possible figure. It is more mmnoral for such a board to waste public money than it is for an individual to squander his private fortune. The determination of the administrative safeguards mentioned above at once leads one into controversial territory. The ftll acceptance of this economic principle could be interpreted to mean that those who _125 - were able to pass the examinations set by the Board of Education should then submit bids as to the annual salary which they would accept and that the Board of Education should appoint to each teaching position the person whose bid was lowest. Such an application of this economic principle would certainly be accepted by all as opposed to the public good. Under such a system teaching could never beqome a profession. The administrative safeguard which boards of education have been sensible enough to provide is that of establishing salaries at a level near that at which, in their jud;nent, they can supply their requirements, then to choose among those candidates who meet the minimum requirements these who are most outstaniing, or those who most greatly exceed the absolute minimum established. Another safeguard which the Committee deems it wise for boards of education to adopt is that of establishing salaries sufficiently high that those who are chosen for educational positions may live at such an economic and social level that they will be self-respecting and unharassed in meeting the necessary costs of comfortable and decent living. Even if a board of education could secure a sufficient number of teachers who meet its minimum professional qualifications who were willing to live in cheerless hall bedrooms, wear shabby clothing and subsist on the cheapest food, it certainly would-be the poorest sort of economy even in the strictly financial sense. Such teachers could not bring their teaching up to the level of whole-souled devotion and enthusiasm which are too valuable to express in dollars and cents to those taxpayers and others whose children are under their instruction -126 - and leadership. Another variation from a strict application of the law of supply and demand which mast be accepted by boards of education in the State of New York has -to do with the salaries paid to men and women teachers. No matter how high or how low the professional requirements be placed, it is possible under existing economic conditions to employ a woman teacher at a salary lower than that required to secure a man of equivalent qualifications. Because of this women teachers were for many years paid salaries lower than were paid to men. The social and professional effect of this strict application of the economic law was such that the legislature of the State of New York some years ago made it mandatory that men and women be paid equal salaries in corresponding educational positions. This was simply an acceptance by the representatives of the people of New York that the improved morale of the women teachers would be of sufficient value to justify the drawing up of this administrative safe-guard against the direct and unsympathetic operation of the law of supply and demand. In snMary, the discussion here presented has enumerated a great many bases which are proposed as valid for the determination of the amount of salary which a teacher should receive. It has presented the balancing of arguments which caused the Committee to discard mawy of them as unsound or impracticable, and to accept only three or four -127 - of them. Those which the Committee accepts are the following: (1) The number of years of teaching experience, (2) The amount and kind of academic and professional training, (5) Under certain conditions, the ability of teachers to pass examinations se.t by the Board of Education, and (4) The operation of the economic law of supply and demand, if it be so applied as to safeguard certain social and professional values. B. CHARACTERISTICS OF THE PLAN ADOPTE The plan of salary adjustment finally adopted by the Citizens' Committee was two-fold. All of the bases for determining salaries which were accepted by the Committee were combined into one plan. The Commrttee adopted this plan for recomendation to the Board of Education as the best method which could be used until such a time as there are objective measures of teaching efficiency which are acceptable to the public and to the teachers themselves. This recommended plan is not new nor unique. Varia. tions of it are already in operation in many American cities. The name most commonly given to the plan is that of "Single Salary Schedule", although this name is inaccurate and misleading. Under the operation of this system of paying salaries, no distinction is made between teachers of primary children and teachers of high school pupils, nor is there any distinction in salaries on account of the sex of the teacher. The different salary groups are determined -128 - solely on the basis of the amount of professional preparation which the teachers have secured. Under the present regulations of the Board of Edication in New York City the lowest salary group would be those teachers who have three years of professional preparation beyond high school graduation. Since college entrance requirements and the regulations of state departments of education almost universally require high school teachers to have at least four years of training beyond high school, practically all of those in this three-year group would be elementary teachers. The next higher salary group will be made up of teachers with four years of training beyond high school. In this group will be found all high school teachers who have only the minimum qualifications for high school teaching, and also such elementary teachers as have secured one year of professional training beyond the minimum requirement for their license. The teacher with four years of training who is assigned to kindergarten or to third grade will receive exactly the same salary as a high school teacher who has taught the same number of years. It will be noted that this plan is strictly in accord with the conclusions of the Committee as outlined earlier in this chapter. The plan accepts the teaching of primary and gramnar grade children as of just as great importance and difficulty as the teaching of high school pupils, and that the well trained teacher of elementary pupils who has equivalent professional qualifications is rendering as valuable a service to the commmity as is the high school teacher. Still another salary group will be those teachers who have the equivalent of five years of training beyond high school graduation. In this group should be found a small number of elenmntary teachers and a considerably larger percentage of high school and special teachers. According to the figures given by the teachers in their confidential reports to the'Citizens' Committee, approximately 78 per cent of the teachers of kindergarten to 6B grades would be placed in the lowest salary group; 15 per cent of them in the group with four years of training; aid nine per cent in the highest salary group with five or more years of training. Teachers of junior high school and of grades seven to nine would have approximately 57 per cent of their number in the lowest salary group; 19 per cent in the middle group; and 24 per cent in the five-year group. A small percentage of the senior high school teachers would be placed in the lowest salary group because some of the teachers of vocational and trade subjects are not required to have the full four years of academic and professional training. At present this percentage of high school teachers would be 27. Twenty-four per cent of the senior high school teachers would be placed in the middle group; and 49 per cent in the highest salaried group. It is conceivable that the Board of Education in adopting this plan for salary payment would create one other salary group for those teachers who have the doctor's degree, or the equivalent of six -130 - or more years of professional training beyond higi school graduation. Some cities which are using an adaptation of this plan have created such a salary group. The Citizens' Committee is not in position to recommend that such a group be established in the New York City schools. This plan adopted by the Citizens' Comaittee does not provide that all teaohers in any one of these training groups shall receive exactly the same salary. There will be a minimum and maximum salary for each training group and a specified range of salaries between these limits. The minimum salary for three-year trained teachers, for instance, will be paid to those teachers with three years of training who have had no teaching experience, or who had had the minimum eperience recognized by the Board of Education. The next year this teacher at the minimum would receive an increase in. salary just as annual increments are now provided for each teaching group. This teacher would continue to receive a stated annual increment for a certain number of years until she arrived at the maadimw salary for teachers with three years of training. But if at any time this teacher secured additional professional preparation sufficient to allow her to qualify as a teacher with four years of training, she would immediately leave the three-year schedule and begin to be paid according to the schedule for teachers with four years of training. She would not be placed at the minimum salary for the four-year group, of course, but at the salary indicated for teachers with four years of training who have had the same number of years of teaching experience as this teacher who is changing from one schedule to the other. The whole plan is pictured below in graphic and diagrammatic form. A beginning teacher may enter at the minimum salary for any one of the three groups according to the amount of professional preparation which she may have when she begins teaching. A teacher coming into the New York City schools from some other educational position may be placed at any step of any one of the three levels, according to her professional preparation and the number of years of teaching experience with which she is credited when entering the New York City schools. The salary amounts used in this diagram are for purposes of illustration only. As explained later, the Citizens' Conmittee did not consider it possible to recommend for immediate adoption this system of paying salaries and was, therefore, unwilling to recommend definite salaries which might or which might not be valid at the end of three or four years. -1l2 - CHAJ 10 yrs. 620 11752 1884 2064 2244 2496 2760 3060 Diagram Illustrati Propo sed Plan for Salry Schedule (The three horizontal levels represent a schedule for teachers with three, four and five years respectively of professional preparation beyend high school graduation. The increasing amounts from left to right at each level represent the increases in salary with each additional year of teaching experience. Any teacher may move from a given salary level to the next higher level whenever she secures the additional professional preparation indicated. The salary amounts written into the diagram are not significant. They are used only to illustrate the proposed plan.) It has been stated that the plan recommended by the Citizens' Committee is two-fold. That part of it which has just been discussed and explained is the Committee's recommendation as to the ultimate solution of the teacher salary problem in New York City. Certain practical considerations caused the Committee to recommend that the adoption of this most ideal system be postposed for the present, but that the plan be put into operation not later than 1930. There were two practical considerations which influenced the Committee in reaching this decision. The first, to which minor importance is attached, is the fact that many teachers and administrators are not familiar with the plan and are inclined to withhold their approval of it. While this is not an insuperable argument against its immediate adoption, the Citisens'Committee felt that it would be unwise to force upon the teachers a plan which they did not fully accept. The second reason for recommending that this plan should not go into immediate operation was one of physical necessity. In order to administer such a plan the Board of Education oust have available the facts concerning the professional qualifications of each teacher in its employ. It does not now have these facts. There is on file among the records of the Board of Education a statement concerning the professional training of each teacher at the time of her last appearance before the Board of Examiners. If a teacher has not taken an examination for a new license in the lasttWenty years these facts are, of course, twenty years old. It would be impossible to administer the salary plan proposed by the Committee on the basis of such records. It is -134 - the belief of the Committee that it would require two or three years for the Board of Education to work out a system of reporting and filing, to secure the facts concerning the present professional status of each teacher in the system, and to evaluate and appraise these facts for each individual teacher. Having agreed upon a plan to be recommended as best adapted to secure equitable and fair salaries for all teachers, and having found it necessary to postpone for two or three years the adoption of this plan, the Committee faced the responsibility of making recommendations concerning salaries to be paid' in the interim. The Committee felt that it was unfair to allow the present inequalities to continue until 1930, especially in the light of the evidence that certain groups have been grossly underpaid for many years. The Committee's solution of this problem was to recommend a "first step" in salary adjustment to be followed by the adoption, not later than 1930, of the salary plan outlined above. Characteristics of the "First Step" Proposed Since it is not now possible to re-group teachers in New York City according to their professional qualifications, the Committee was under the necessity of accepting the present classification of teachers into groups according to the license which they hold or according to the kind of educational position which they fill. It is therefore necessary for the Committee to recoamend a readjustment of present schedules which will be more fair and equitable, but which will preserve in many particu-135 - lars the characteristies of the present plan of paying teachers in New York City. The distinguishing eharacteristics of the Committee's proposals for inmediate adjustment of teachers salaries are as follows: (1) It is recommended that the salaries of nearly all groups be increased; (2) That all annual salaries shall be evenly divisible by twelve; (3) That the first three or four annaul increments of each sched. ule be smll, to be followed by larger annual increments throughout the remainder of the schedule; and (4) That a super-maximm salary be provided for those te&chers whose professional preparation exceeds by one or more years the minimM requirements for license. The first characteristic of the plan recomended for immediate adoption is entirely Justified by the facts reported in Chapter III. It was there shown that praotically all groups of teachers are receiving salaries with lower purchasing power than they received in 1910. Evidence was also presented in this chapter that present salaries are so low that teachers are finding it necessary to spend a disproportionate amount of their earnings upon food and rent. The amounts of the actual increases proposed will be found in Chapter VI. The second characteristic of the first step of the Committee's proposed plan is of minor importance. Teachers in New York City are paid on a twelve-month basis, The Auditor of the Board of Bducation is authority for the statement that it would save thousands of dollars if -156 - the annual salaries are multiples of twelve. In that case the amount due each month will bo an even number of dollars, so the bookkeeping and writing of salary checks will be appreciably simplified. The Committee proposes that beginning teachers shall receive small annmal increments for three or four years. This recommendation is made because of the fact that there are many teachers who remain in the system only a short time. These teachers have no real interest in teaching as a profession, but are using it as a means of livelihood while preparing for another profession, or as a temporary source of income. It is the belief of the Committee that the greatest possible proportion of the total moneys available for teachers' salaries should be reserved for those who will make this type of public servioe their permanent professional interest. The fourth characteristic of this proposed first step is one of very great importance. The super-maximm salary proposed by the Committee should be the forerunner of a new era in professional education in the City of New York. Heretofore it has been impossible to make any distinction in salary between the teacher who qualified for a position and made no effort to grow professionally and the teacher who was willing to sacrifice any reasonable amount of energy and money in order to keep herself alive in a professional way. At present the teacher who has taught for fifteen years and who knows nothing of the modern theory and practice of teaching receives Just as much salary as the teacher who has kept herself in close touch with the great educational advancement which has been made in recent years. The Committee does not deny that a few rare individuals have kept themselves up-to-date professionally through private study and observation. Such individuals will be no worse off under the working of the proposed supermaximum plan than they now are. On the other hand, the Committee believes that any teacher who has secured as much as one year of professional preparation beyond theminimum requirement of the license which she holds will of necessity have a reasonable understanding of the meaning of modern education, and will be almost certain to be alive and up-to-date in her teaching. The proposed plan guarantees to these teachers a part of the recognition which they deserve. The Committee attaches even greater importance to this proposal because of the belief that it will stimulate professional activity on the part of teachers who have heretofore had no substantial incentive to improve themselves in service. In each of the schedules recommended for teachers the Committee proposes that the super-maximum salary be reached through three annual increases beyond the regular maximum for teachers with only the standard or minimum requirements for each particular license. 'ehe Committee has recommended one exception to the general rule that only teachers with an additional year of professional preparation shall advance beyond the regular maximum. In the case of teachers who have had thirty or more years of teaching experience it is proposed that two of the three super-maximum increases be paid regardless of the amount of professional training of these older teachers. This is a recognition by the Committee that it is impossible for the community to pay in cash the full debt which it owes to the&e teachers who have given a life-time of service to public education. Moreover the Com -158 - mittee recognizes the fact that it would not be humane and reasonable to require these teachers to undertake the physical and financial burden of securing additional professional credits. It is suggested by the Committee that the Board of Education, if it is legally possible, adopt a ruling which will make it impossible for these older teachers to remain too long in service because of the large increase in salary which this recommendation of the Committee would guarantee them. In summary, the Committee recommends for adoption a two-fold plan of salary adjustment. First, an immediate increase of the salaries of most of the teaching groups under a plan of payment not differing greatly from that in practice at present. Second, the adoption and putting into practice not later than 1930 of a plan of paying teachers solely on the basis of their professional qualifications as determined by the kind and amount of professional training which they have secured and the number of years of their teaching experience. CHAPTER V PROCEDURES USED I3 DEIER G SCHEDULES In the preceding chapter it has been shown that the Citisens' Committee was forced to reconrend two separate stages or steps in salary adjustment for New York City teachers. Beoause it seemed physically impossible to put into effect at once a plan of paying teachers on the basis of their professional qualifications only, the Committee has recommended that such a plan of payyment be put into effect in New York City not later than 1930. It is the purpose of this chapter to explain in some detail the methods by which the recommendations as to the first step in adjustment were determined. SUBSIR OF THE PRINCIPLES ACCEPED The guiding principles accepted for this stage of the Committee's work hare already been outlined. It was agreed, for instance, that the principle of equal pay for the two sezes should be aocceted, that the present plan of paying larger salaries to the teachers of older ohildren should be continued in effect during this interim, that the annual increases in pay should be mach smaller during the first three or four years of a teacher's service, that all annual salaries should be evenly divisible bj twelve (12) in order to simplify the book-keeping in the offices of the Board of Xdwcation, and that superior professional training should.be reoognised by the payment of salaries higher than the -140 - regular maximum salaries for the teachers with only the standard qualifications for each license. It was further agreed that immediate salary adjustments should give primary consideration to the relief of those economic groups of teachers whose living costs were highest, provided only that each group thus chosen as basic should be really indispensable to the successful carrying on of the type of schools in which it teaches. It was also accepted that such salaries should be paid to each of these economic groups that the average expense for food and rent should not exceed 55 per cent of their total annual salary. It is stated in another section of this report (see page 43 ) that intensive studies of teacher budgets have been made in Michigan and California, and in a number of American cities. It has been found in these studies that the two items of food and rent most commonly constitute from 45 to 50 per cent of a teacher's annual expense. Since it is known that the cost of rent in New YorJ City is disproportionately high, the Committee reasoned that it would be defensible to expect New York City teachers to spend as much as 55 per cent of their salaries for food and rent. If the Committee had accepted the more usual 50 per cent as the standard for New York City, it would have resulted in the recommendation of higher salaries. The acceptance of 55 per cent instead of 50 per cent is another instance of the Committee 's conservatism. It was agreed that the salaries of supervisory and administrative officers could not fairly be based on the actual expenditure -141 - of these groups for food and rent. The Comnittee therefore made a study of the relationship between the salaries of administrative and supervisory officers and the salaries of.regular teachers in each of the large American cities ~rom which it had secured the facts. The average of these relationships was accepted by the Committee as the best guide in establishing salaries to be recommended for administratore and supervisors. A more detailed explanation of this procedure is given on page 165 of this chapter. In the final smoothing out and adjusting of the very many schedules whicf were to be proposed, the Committee did everything possible to avoid over-lapping of schedules which would result in paying supervisory groups smaller salaries than any considerable nmber of the teachers whom they supervised. Because 2f the complicated organization of the school system into elementary schools of both six grades and eight grades, the provision of junior high schools in some areas of the city and not in others and of senior high schools of both three and four grades, this over-lapping could not be entirely eliminated. For instance, in elementary schools of eight grades, teachers of seventh and eighth grade classes have to be paid on the Junior high school teacher schedule. These schools are administered by elementary school principals and a part of the supervision of teachers is done by assistants to elementary principals. In order to recognize teachers of seventh and eighth grades of superior professional qualification, it was necessary to pay them a super-maximm salary -142 - which might be higher than the salary paid to assistants to elementary principals of less than four years of service in their positions. The only possible method of preventing this over-lapping of salary schedules would have been a shortening of the range of each separate schedule so that the minimum and maximum salaries were much more nearly equal. This procedre would have made necessary either a very small number of annal increases in salary for each group, or a larger number of very maIl annual inorements. Such a solution would have resulted in a leveling of the' salaries within each teaching group which would have made impossible an adequate reward for years of teaching experience or for superior professional training. The Conmittee was convinced that such a plan would have been a great deal Lore undesirable than the occasional over-lapping of the maximum tlaries of one teaching gpbup upon the minim salaries of a supervisury group. -145 - ACTUAL IET IATION OF SCBHEDUIES At this stage of its procedure the Conmittee had available the facts concerning teachers' salaries in other cities and concerning the present professional sad economic status of New York City teachers. After a great deal of discussion and study the Conmittee had also agreed upon the principles which seemed most desirable as guides in its proposed schedle-making. It was now ready to undertake the actual determination of the salaries whioh it would propose for adoption during the interim preceeding 1930. In this semotion of the chapter the computation and determination of a number of these schedules will be presented. One of the simplest and easiest to understand is the schedule for senior high school teachers. It will be presented first. Schedule for Senior hgh School Teachers. The first procedure of the Committee was te determie 'the. economic group of senior high school teachers whose living cost was highest. This was an easy matter since all of the food and rent expenses of each group of teachers had been tabulated separately for the different economic sub-groups making up the total-group. The Hollerith cards had been sorted by the eleotrical machines so that the statistical tables presented the distribution of expenditures for food and for rent for three groups of women high school teachers - (1) those who were married and were living with their husband, (2) those who were uzmarried but were living at homei with parents, married -144 - 4. sisters and so on, and (3) those who ere living away from hoe and paying the fal cost of their food and rent from their own earnings. The men high school teachers were divided into the same three groups except that married men were farther sub-divided on the basis of the number of their children. It was thus possible to make a separate study of the living cost of married men who had no children, one child, two children, and so on to men who had the maximm nnmber of nine children. These tabulations showed that the living cost of married men with children was higher than that of any other group of men or women teachers. At this stage the Coomittee was faced by the neoessity of deciding whether this group of married men teachers was indispensable to the successful carrying out of the senior high school educational program* All members of the Committee and all the edo-^tional authorities consulted were unanimous in agreeing that public high schools taught entirely by women teachers, no matter how efficient they were, could not possibly provide the sort- of educational and cultural program demanded of these schools. It was agreed that there must be at least a small percentage of men teachers in these schools. If there must be men teachers, there must, of course, be married men with children. It is unthinkable that a man should be disqualified as a teacher because he marries and becomes a permanent and stable citizen of the conmanity. There was, therefore, not a single opposing argument to the selection of married men with children as the basic group in the determination of senior high school salaries. -145 - It is reported in Chapter III that 43 per cent of all the senior high school teachers in New York City are men and that threefourths of these men are married. Seventy-seven per cent of these married men have one or more children. In other words, 25 per cent of the entire teaching group, men and women, are married men with children. At this point the Comnittee made a purely arbitrary decision to choose the married man with a wife and one child as the basic group instead of using the entire group of married men with children. This decision was made for the sole purpose of erring, if at all, on the side of conservatism - to avoid the recommendation of salary schedules higher than were absolutely necessary to a comfortable and decent living for married men teachers in New York City. Another reason for choosing the married man with children whose living expense was the minimum was to avoid increasing too greatly the differential between elementary and high school teachers. It is true that 46 per cent of married men high school teachers have two or more children and fifty per cent of them have three or more persons who are chiefly dependent upon their income - that is, have a greater number of dependents than a wife and one child. In a later part of this section it will be shown that the basic group used in determinin the salary for the elementary teachers was unmarried women living away from home. Seventy per cent of this group have one or more persons in addition to themselves chiefly -146 - dependent upon their incomes. As compared with this, 50 per cent of married men have a greater nnuber of persons than a wife and one child dependent upon them. These are the facts concerning the rent and food expense of married men teachers having a wife and one child: Half of them spend more and half of them less than $947 per year for rent and the middle figure on the annual expense for food was $1,222, a total average expense for food and rent of $2,169. As is shown in Chapter III, onefourth of this same group spends more than $1,227 for rent and more than 1,465 for food for their families. Since.expense for food and rent was accepted by the Committee as the index or indication of the total need for annral income, and having reached the decision that food and rent should require not more than 55 per cent of this annual income, it was a simple arithmetic problem to compute the basic salary for senior high school teachers. This average expense for food and rent of $2,169 was divided by 55 per cent. The quotient was a little more than $5,900. This was accepted by the Committee as the basic annual salary for all high school teachers no matter whether they were women, unmarried men or married men with six or eight children. As has been stated in other sections of the report, the Committee accepted fully the principle of equal pay for the two sexes but refused to accept the principle of the family wage or a salary which should vary according to the number of persons who were dependent on the individual teacher. -147 - In the schedule-making of the Committee the basic salary was not used as either the minimm or the maximum salary for any group. Instead, the schedules were so arranged that any group of teachers would arrive at a basic salary after five to eight years of-service under that particular schedule. In the case of high school teachers it seemed reasonable to suppose that the typical man teacher begins his high school teaching as a young man before or soon after marriage and that he arrives at the economic status implied by the basic salary after four or five years of teaching. Again the Committee was conservative and arranged the schedule for high school teachers so that they would arrive at the basic salary at the end of eight years of teaching service, Since the basic salary was used as a reference point, the decision that high school teachers should reach this salary after eight years of teaching had a very direct relationship to the minimum salary and to the amount of the annual increment which should be paid. Other considerations which were given weight in determining the mnirimm were the present mininma salaries paid to a given group of teachers and the miniun salaries proposed in the Rieca Bill which had been passed by the State Legislature and vetoed by the Governor. From one point of view it is a defensible claim that the present minimum salary of $1,800 for high school teachers is high enough. It is known that persons who graduate from college rarely secure positions in business or in the professions which will give them a return of more than $1,800 to $2,000 the first year. The -148 - opinion is generals however, that present salaries and professional conditions are such that many of the most able and intelligent of college graduates are failing to be attracted into the teaching profession. It seems entirely Justified to make minimum salaries sufficiently high that boards of education may secure the very highest type of college graduates for teaching positions. As compared with the present practice of paying a minimum salary of $1,800 to beginning teachers in high school, the Ricca Bill had proposed $2,150 followed by two annual increments of $200 and then eight anrnal increments of $225* The Comittee decided upon four beginning increments of $192 per year followed by six annual increments of $252* It has been explained that schedules for teachers were established by computing a "basic" salary which was placed somewhere in the middle of the schedule and by using this basic salary as a reference point from which to work downward to the minimim and upward to the maximm salaryo It is clear then that when the Committee decided that there should be four beginning increments of $192 per year followed by increments of. $252 and that high school teachers should arrive at the basic salary after eight years of service, these two facts taken together established the minimum salary for that schedule. The minimum which resulted was $2,280. -149 - It is the belief of the Citisenst Comnittee that so considerable an increase in the present mintaim salary for high.school teachers should attract to the examinations the very best of the graduates of colleges and universities. Under this proposed schedule a young man who enters high school teaching as a profession will receive $5,048 in his fifth year of service. Such a salary compares favorably with that which a young man migkl expect to receive in some other business or profession after he has been out of college four of five years. Under the present plan such a person receives only $2,400 during his fifth year of high school teaching. The Conmittee feels assured that the added expenditure made necessary by the beginning salaries which are reconmended will yield much more than value received in terms of a higher percentage than now of the really outstandin young men who are going directly-from college into business and the professions. The maximm salary proposed by the Ricca Bill for senior high school teachers is $4,550. The schedule proposed by the Citizens' Comittee establishes a regular maximm of $4,560. This maximum is reached at the end of the tenth year by all high school teachers who were able to pass the entering examinations and to secure appointment as regular teachers. Those high school teachers who secure an additional year of professional preparation beyond the standard requirements for their license will receive three more annual increments of $252 after attaining the regular maxinm of $4,560, thus arriving at the so-called super-maximum salary of $5,516. Fifteen per cent of the married men -150 - with wife and one child are now paying for food and rent an amount equal to 55 per cent of the super-maxism salary proposed. One of the dheckl which the Committee used in determining the reasonableness of each schedule recommended was that of comparing the average salary which would be paid in the proposed schedule with the average salary paid to the men teachers within each group in 1910. This comparison was made in terms of relative purchasing power of the dollar rather than in terms of the gross number of dollars received. The comparison of salaries reoonuended for men and women were compared with those actually paid to men only in 1910 for the reason that the principle of equal pay for men and women was accepted after 1910. It is the logical contention of women teachers that average salaries for men and women in 1910 may not fairly be compared with the average salaries now paid since equal pay has become effective. The.average salary actually paid to men and women high school teachers during the school year 1925-1926 was $3,293. If the proportion of these teachers at etch year remains the same in the future as in 1925-1926 the proposed schedule would result in an average salary of $4,229 the first year the Citizens' Committee schedules were put into effect. In 1910 the average salary paid to men high school teachers was $2,143. XO the basis of the index of the purchasing power of the dollar, as explained in Chapter III, -151 - this average salary of $2,145 in 1910 would purchase as much as $4,522 in December, 1925. In other words, the proposed schedule for high school teachers would give them an average salary of only $4,229, $95 less than the pu chasing power of the average salary paid to men in 1910. The Coomittee accepted this comparison as important evidence that the schedule proposed for high school teachers was fair and reasonable. It should be kept in mind that the purchasing power of former salaries does not in any way enter into the determination of the schedules proposed by the Citisens' Committee. Such a comparison was used only as a validation of the schedule determined by the Committee through the procedure outlined in this chapter. Schedule for Elemear School Teachers The Committee followed ezactly the same procedure in determining the schedule for the teachers of the grades from kindergarten to 6B as it employed in determining the high school schedule. In the case of these elementary teachers, the economic group whose living cost was highest was the women teachers who were not married and were living away from home, that is, those who were themselves paying the total cost of their food and rent. It was of course accepted by the Committee that women teachers were an indispensable group in elementary school teaching and that all women teachers should be paid enough that they could afford to pay cash for their own costs of living. The fact that married women and women living at home with parents -152 - or other relatives expended less for necessary living costs undoubtedly results from the fact that these women are in varying degrees the recipients of charity from their husbands or relatives. It would be indefensible to pay all elementary teachers smaller salaries because a large proportion of these women do not themselves bear the full expense of their own living costs* One of the most difficult problems faced by the Committee was that of reaching a decision with respect to the employment of men as teachers in the first six grades of the school system* As was pointed out in Chapter III, only three per cent of all the elementary teachers of New York City are men, and a large proportion of these men are young college graduates with only two or three years of experience as elementary teachers. Because so many of these men are teaching under the beginning salaries of the present schedule their average salary is only $1,800 a year. Naturally their expenses for food and rent have to be very low. These expenses actually are lower than the corresponding expenses of women elementary teachers who are living away from home. Only a small percentage of these men are married. Few of them present any evidence that they are permanent members of the elementary teaching group. If it were true that thirty or twenty or even ten per cent of all the elementary teachers in New York City should be men, the Citizenst Conmittee might have been Justified in proposing for all elementary teachers a salary schedule high enough that married men with children could live comfortably on the salaries proposed. The fact that only -15S or two years earlier than the high school teacher would reach her basic salary. The present minimum salary paid to elementary teachers in New York City is $1,500. The Ricca Bill proposed a minimr of $1,600. The schedule adopted by the Citizens' Committee accepts $1,620 as the beginning salary, provides for three annual increments of $132, followed by three of $168 and those by three more annual increments of $180 each. The maximum salary to be reached by all elementary teachers who remain in the service ten years is $3,060. The schedule ftrther provides that all elementary teachers who secure one year of approved professional training beyond the minimum requirement for their license shall be eligible for three more annual increments of $216 each. In other words elementary teachers who have an equivalent of four years of training beyond high school graduation will attain a super-maximum salary of $3,708. The first proposal of the Committee was that the minimum, maxiwmm and super-maimum salaries should be the same as are reported above but that there should be three increments of $120 and six of $180 each between the minimum salary of $1,620 and the regular maximum of $3,060. The present salary schedule provides for equal annual increments of $125. The Comittee therefore amuended its first proposals so that no annual increment should be less than $125 in order to make sure that the adoption of the schedule recommended would not require action by the State Legislature. -154 - In 1925-1926 the average salary paid to teachers of kindergarten to 6B was $2,433. The same distribution of these teachers upon the proposed schedule would give them an average salary of $2,659 the first year of the operation of tha schedule, or an increase of $206 per year on the average. When the average salary resulting from the recommended schedule is compared in its purchasing power with the average salary paid to men elementary teachers in 1910, it is found to lack only $19 of having as great a purchasing power. The average salary of men elementary teachers in 1910 was $1,518. Applying the index of purchasing power (201.7) gives $2,658 as the average salary which would have been required December 1925 to purchase as much as the man elementary teacher could buy with his salary in 1910. It will be recalled that the schedule proposed for high school teachers lacks $93 of restoring to high school teachers the purchasing power of the man's salary of 1910. These comparisons were accepted by the Committee as important evidence of the validity and fairness of the two schedules. An increase of 00 came nearer restoring the purchasing power of the man's salary in 1910 in the elementary school than did an increase of $900 in the case of high school teachers. This situation resulted from the fact that salaries of elementary teachers were increase much more, relatively, by the mandatory legislation between 1910 and 1926 than were the salaries of high school teachers. Chapter III shows that the average salary of all elementary -155 - three per cent of the elementary teachers are men and that very few of them are married men with children could well be a direct result of the payment of salaries which are too low to support men teachers with families. The members of the Committee considered this problem of the desirability of.men as elementary teachers from many angles. They reached the conclusion that at least during the interim preceding 1930, teaching in the kindergarten and in the first six grades of the public schools should be accepted as a woman's job. Having reached the decision of considering teaching in the elementary- schools as a position especially suited to the woman teacher, the Committee proceeded to the determination of the elementary teachers' schedule exactly as it had determined the senior high school schedule The indispensable group whose living cost was highest was that of women living away from home* The average expense for meals reported by this group was $684 per year and the average rental was approximately $700 per year. This total of $1,384 was 55 per cent of $2,516. Two thousand five hundred and sixteen dollars was therefore accepted as the basic salary for all teachers of grades from kindergarten to 6B since the average expenditure of this group for food and rent would not exceed 55 per cent of that amount. As in the case of the senior high school schedule,this basic salary of $2,500 was made neither the min'imrm nor the maxim_ m salary but was placed within the schedule so that the elementary teacher would reach it at the end of six years of teaching service, -156 - teachers in 1926 had a purchasing power 133 per cent as great as the average salary of the same group in 1910. In the case of the high school teachers the average salary of 1926 was only 86 per cent as great in purchasing power as the average salary of 1910. A part of this difference is accounted for by the acceptance of equal pay for men and women. A larger proportion of women are found in the elementary schools than in the senior high schools. Schedule for Junior Hgh School and Grades 7 to 9 Attention'has already been directed to the fact that the New York City public schools are organized into elementary schools of both six and eight grades and that junior high. schools are provided for only a part of the seventh to ninth grade pupils. It has been the policy of the Board of Education to issue the same license to teachers of the 7th and 8th grade in eight-year elementary schools and to the teachers in the regular junior high schools. It is an interesting fact which throws light on the educational philosophy of the Board of Superintendents that this license for seventh and eighth grade teachers is called a "promotion" license. All of the teachers teaching under this license are paid on the same salary schedule. In keeping with this policy the Citizens' Committee has recomended the same schedule for teachers of Junior high schools and of grades 7 to 9. -157 - A careful study of the reports returned to the Committee by these teachers indicates that the group is made up of teachers with a wide range of professional qualifications. The junior high school is so new an institution that few normal schools and teachers colleges have trained any of their graduates for the specific position of junior high school teaching. In New York City, as in most other cities, the group is made up of senior high school teashers and of elementary school teachers who have been drawn from these respective schools and. assigned to unior high school teaching. The wide variation in the qualifications of these teachers and the fact that the total group is really composed of two distinct bodies of teachers made it practically impossible. for the Committee to work out a schedule on a basis coparable to that used for the senior high school and the elementary school schedules. In nearly all cities which have different schedules for teachers of different types of schools, junior high school teachers are paid a salary greater than the elementary teachers and less than the salary of senior high school teachers. The Citizens' Committee followed this practice and has recomnended a schedule whose annual increments and whose minim=m and mnaium salaries are about midway between the corresponding recnnendations for the elementary and senior high school teachers, Because some cities mak no distinction between the salaries of junior and senior hig school teachers, -168 - because it was accepted by the Committee that a considerable percentage of the Junior high school teachers should be married men with children, and because an increasingly large per cent of these teachers are required to have a minimum professional training of four years beyond high school graduation, the minimum, regular menximm and super-maximum salaries established for this group are a little nearer those established for senior high school than for elementary school teachers. Accepting the facts and principles listed above the Citizens' Connittee has recommended for these teachers a minimu salary of $1,980, and three anual increments of $156 followed by six increases of $252 per year. This results in a regular mnaxmnm of $3,960. As already explained in the case of the elementary and senior high school schedules, the Comittee's recommendation provides for three more annmal increments for those teachers of this group who have as much as one year of approved professional preparation beyond the regular qualification of four years of training beyond high school graduation. It is recomnended that these three increments be of $252 each thus arriving at a super-maximm of $4,716. It will be noted that the annual increments beyond the regular maimnm salary in both the Junior high school and the senior high school schedules is $252 and that the corresponding increases in the schedule proposed for elementary teachers are $216 per year. The Coomittee established this differential with two objects in mind; first, it was in -159 - accordance with their plan of establishing maximum salaries for Junior high school teachers slightly nearer the corresponding recommendation for senior high school teachers than for elementary teachers; second, the additional professional training recognized in the case of the elementary school schedule is a fourth year of professional training beyond the standard three years required for that license, -- that is, for an additional year of under-graduate study. In both the Junior and senior high school schedules, the super-maxinnw may be qualified for only by taking a year of post-graduate work beyond the standard qualification of four years of under-graduate traning beyond high school graduation. If the teachers of junior high schools and of grades 7 to 9 are arranged on the proposed schedule somewhat as they were on the schedule of 1925-1926 with respect to their years of teaching experience, their average salary would be increased $694 the first year the proposed schedule goes into operation. It will be recalled that the corresponding increase for elementary teachers was $206 and for senior high school teachers $936. The average salary of the men who were teaching in grades 7 to 9 in 1910 was $1,850. At that date no junior high school had been established. According to the Committeets index of the purchasing power of the dollar, $1,850 in 1910 was equivalent to $3,731 in December, 1925. The proposed increase of $694 would result in an -160 - average salary of about $3,800 for all the teachers of this group - in other words would give to all these teachers a purchasing power approximately $70 higher than the purchasing power of the average salary of the men teachers of grades 7 to 9 in 1910. Teachers of Atpical Children At the present time no differential in salary is made betweer teachers of normal pupils and those who teach classes for the blind, for sight conservation, for deaf, crippled, tubercular and other atypical pupils. In the schedules proposed in the Ricca Bill the representatives of all the teacher organizationa agreed that these special teachers should receive salaries higher than teachers of children who were normal. The Citizens' Committee likewise accepted the soundness of this point of view and recommended for these teachers a schedule slightly higher than that recommended for junior high school teachers. The minimum salary proposed for these teachers is $2,100. The first three annzal increments are $156 to be followed by six increases of $252 per year. The regular maximum salary proposed is therefore $4,080. The super-maximn for these teachers is $4,836 to be reached by three annual increments of $252 per year beyond the regular maiamm salaryo It is the belief of the Citizens' Committee that the salary schedule for teachers doing this highly specialized and most important work in New York City should be sufficiently high to at -161 - tract and reward teachers of special ability in these fields of teaching. Effective administration of these schools and classes will be made more easily possible and a supply of these well-trained specialized teachers should be much more likely to be available under the schedules proposed by the Committee. Training School Teachers One of the outstanding weaknesses of the present plan of paying teachers in New York City is that of making no distinction in salary between regular high school teachers and teachers in the training schools. As a result it has been very difficult to secure a sufficient number of gDod teachers for the teacher training institutions maintained by the Board of Education. The members of the Citizens' Committee were unanimous in the belief that a substantial differential should be provided for the teachers to whom are entrusted the vital work of preparing others to teach in the city school system. Not only mst the work of the training school teachers be highly specialised and adapted to pupils who are adulty, but higher qualifications also are demanded of the training school teachers than of the regular high school teachers. No teacher is eligible for appointment in training school unless she has had five years of teaching experience, at least three of which have been in elementary schools. The regular high school teacher may qualify with a single year as a substitute teacher. -162 - The schedule recommended by the Committee provides that the minimnu salary for training school teachers shall be $2,400, u120 a year higher than the minimum for senior high school teachers. The proposed schedule also provides for ten annual increments of ~264 and a regular maximum salary at the end of eleven years of service of $5,040. Those teachers who may have secured one year of approved professional training beyond the standard requirement for their license will then receive three more annual increments of $252, thus arriving at a super-maximum salary of $5,796. These maximum salaries are $j480 per year higher than the salaries which may be attained by regular senior high school teachers. It is the belief of the Committee that this substantial recognition of the peculiar importance and difficulty of the training school teacher's work should serve to solve the present problem of securing a sufficient number of well-trained instructors in the teacher-training institutions of the city. It seems that the Board of Education could expend public funds no more wisely and economically than in securing thoroughly competent and well-trained teachers for those persons who are to become the 3ctual class room teachers of the boys and girls of the city. Senior High School First Assistants Under the terminology adopted in the New York City schools the regular class room teachers in senior high schools are called "assistants" and the heads of departments who have certain administrative and supervisory responsibilities for all of the teachers in a given field of subject matter in any one high school are called "first assistants". Some years before the World War these heads of departments were paid on a schedule approximately 25 per cent higher than that of the assistant teachers. This differential was decreased proportionately as mandatory legislation secured higher salaries for the New York City teachers until the maPimm of -)4,200 for first assistants was less than 14 per cent higher than the $5,700 maximum of the regular high school teachers. Since the position of first assistant is the logical and desirable promotion for the regular high school teacher it has been accepted by all those connected with the public high schools that the interests of all would be greatly advanced by restoring the proportional differential of the earlier salary schedules. The Citizens' Committee has accepted the validity and desirability of this increased differential between the regular high school teachers and the heads of departments. It therefore recommends that senior high school first assistants shall receive a minimum salary of $5,700 followed by three annual increments of 4300, thus arriving at $6,600 as the maximum salary for this position. The Committee thus establishes a maximum salary for this group approximately 25 per cent higher than the super-mazinmu for senior high school assistaits. It, of course, does not recommend a super-mraxim salary for first -164 - assistants. It is accepted by the Committee that any one who secures appointment as a first assistant will have professional preparation equivalent to at least five years training beyond high school gradua. tion -- the qualification which is recognized by the payment of the super-maximm to the regular teachers. Elementary School Prin als Up to this point this chapter has presented the application of the principles accepted by the Citizens' Committee in the determination of salary schedules for different teaching groups. The Committee determined the schedules which it recoomends for. supervisory and administratire positions on quite different bases. It will be recalled that the fundamental schedules for teacners recomrended for the interim between the present time and 1950 gave direct consideration to the determination of salaries iuon which the indispensable groups of teachers whose living costs were highest might live comfortably and decently in New York City. The Conmittee has assumed that the social and professional demands upon those in supervisory and administrative positions may well require a financial outlay which bears a different relationship to the total income than in the case of class room teachers. It has therefore attempted to solve the problem of determining these schedules by attacking it from an entirely different angle. It was recognized by the Committee that every Board of Education in the United States has faced and solved in some manner, -165 - haphasard or otherwise, the problem of the relationship between the salary of a principal and the salary of the regular teachers in his school. Expressed concretely and directly, the relationship between the average salary paid to elementary principals and to elementary teachers, for instance, in a given city, represents that co nity's evaluation of the relative economic importance of these two edncational positions. The Committee reasoned that it could find no more valid basis for establishing the salary of principals than that of the combined Judgent epressed in the mst common practice in other large American cities. It is an interesting fact that in practically all of the cities studied intensively by the Committee the average salaries of elementary principals were almost exactly two times as great as the average salary of the regular elementary teachers. Having established a schedule to be recomnended for elementary teachers, the Committee then accepted this ratio of one to two as a basis in establishing a schedule for elementary principals* It is recommended that the beginning salary for this group shall be $5,064, followed by three annual increments of $560 each, arriving at a regular maximim of $6,144. It will be noted that this amount is almst exactly twice that of the regular maximm recommended for teachers of the kindergarten and the first six grades. The Committee faced an embarrassing difficulty in attempting to establish an equitable schedule for all elementary principals. The analysis of the professional qualifications of these -166 - principals showed that their training ranged all the way from high school graduation to that of the equivalent of the degree of Doctor of Philosophy. The present requirement of three years training beyond high school for elementary teachers is comparatively recente In earlier years many teachers began work in the elementary schools with a much smaller amount of professional training and some of them secured promotion to principalships. As a result, the present staff of elememtary principals varies greatly in its ability to comprehend and put into effective practice the sound and valid principles and methods of modern educational procedure. The Conmittee's solution of this problem was a recommendation of a super-maximu salary for elementary principals of outstanding professional training. This is the Committee's one exception to its policy of recommending super-maximum salaries for teachers only. la the case of these principals it recommends that those of the group who have the approved equivalent of six years of training beyond high school graduation shall receive three anual increments of $252 each beyond the regular maximum for the entire group of $6,144 - in other words, those principals who can meet this qualification as to professional preparation shall receive a super-maximan salary of ~6,900 per year. It will be noted that the schedule for elementary principals establishes for all of this group a regular maximnm salary substantially higher than that received by the highest paid group whose sole responsibility is teaching — the trining school teachers -167 - at a uwper-maximum of $5,796. The super-maximum salary for elementary principals likewise is established at a point $300 higher than the highest salary which the head of the department in senior high school may receive. On the basis of the index of the purchasing power of the dollar the regular maximm proposed by the Committee is 87 per cent as great as the maximum for elementary principals paid in 1910. The super-maximum salary proposed is 98 per cent of the purchasing power of the 1910 manimum,. Senior i School Principals In 1910 high school principals in New York City were receiving $5,000 per year. This 1910 salary was a distinct reduction in purchasing power over the j5,000 salary paid them in 1900 since the cost of food - and probably the entire cost of living - had increased aplroximately one-third from 1900 to 1910. At the present time high school principals in this city are receiving only $6,500 per year or approximately 64 per cent as great purchasing power as they were paid sixteen years ago and less than one-half as much as they received in 1900. The Committee's procedure in arriving at its proposed schedule for high school principals was the same as that outlined in the preceding section with respect to elementary school principals. The combined Judgaet of large American cities in establishing the relationship between the salaries of this group and the salaries of high school teachers and of elementary school principals was accepted as the most valid basis for determtning the schedule to be proposed. -168e It is proposed that these principals shall receive a beginning salary of $9,000 followed by three increases of $600 each year, thus arriving at $10,800 as the maximum salary for the groups The Committee feels entirely justified in recommending this increase of approximately 80 per cent in the present salary of high school principals. It accepts the fact, which is obvious to any one who investigates the situation, that this group along with the elementary principals and other administrative officers of the school system have been more or less the victims of salary legislation arrived at unscientifically as the result of mutual compromise among the several educational groups. The number of such positions available is small enough that the total increased cost to the city will not be large. The stimulating effect of the substantial salaries proposed should bear a very great indirect return among all of those in the lower salaried groups who think of appointment to such positions as the professional goal toward which they may bend every effort. As was stated above, the proposed schedule restores to these principals almst exactly the purchasing power of the salaries of 1910 and approximately three-fourths of that of the salaries of 1900. Junior Hiih School Principals Although there are many junior high schools in the New York city system, each with a principal in charge, the position of junior high school principal has never been established officially by the Board of Education. Technically the principals in charge of these -169 - schools are elementary school principals who receive a small bonus because they are assigned to the junior hig schools. The Citizens' Committee decided to limit its function to that of recomnending salaries for educational positions as they now exist and to take no responsibility for recommending changes of policy to the Board of Education. In accordance with this decision, the Committee could make no recommendation with respect to salary schedules for junior high school principals since there are not at present any persons in the school system who are so designated. It seems obvious to the Committee, however, that this position which exists in fact would very soon be created officially by the Board of Education. The Conmittee has therefore recoamended that if and when the position of junior high school principal is established, the following schedule of salaries shall be paid to these principals: A beginning salary of $6,600 followed by three annual increments of $500 each, thus arriving at the maximum salary of $8,100o. As in the case of the other schedules for principals, the proposed schedule was determined on the basis of the relationship between the salaries of principals and teachers in the junior high schools of other cities. Assistants to Elementary Principals The determination of an equitable salary schedule for the assistants to elementary principals was one of the most difficult of -170 - the Committee's marn complicated problems. These assistants combine the duties of clerks and supervisors of class room instruction. The superintendent of schools some months ago issued a letter to all elementary principals recommending that their assistants be given important responsibility in the work of supervision. The Committee has therefore recommended a schedule which guarantees to the lowest paid assistant a salary higher than the super-maximum received by teachers of kindergarten to the 8B grades. Since many elementary schools are organized for eight grades, a number of the assistants to elementary principals have the responsibility of a supervisor of seventh and eighth grade teachers who are paid according to the Junior high school teacher schedule. The schedule recommended for assistants provides a maximm higher than the highest salary which may be received by any 7th or 8th grade teacher. It was not practicable for the Committee to establish a minimum salary for assistants to elementary principals which would be higher than the suDer-maximum for junior high school teachers. To have done so would have resulted in a schedule with almost no difference between the minimum and -mairmum salaries, or else in a schedule which would have made it possible for an elementary principal to receive a smaller salary than that received by his assistant. It seemed to the Committee much less objectionable to provide for a slight over-lapping of the schedule for these assistants and for the super-maximu junior high school -171 - teachers than to have chosen one of these alternative plans. The minimu salary proposed for assistants to elementary principals is $3,780. For each of four years following this first year the anmal increase will be $240, the maximum salary of $4,740 being attained after five years of service. Although the Committee reconvends a super-maxinum salary for bott elementary teachers and elementary principals it makes no such recommendation with respect to assistants. These positions should be considered as a training school for future elementary principals rather than as life-time positions in themselves. Since there are almost as many principalships as there are assistants to principals, the chances of promotion should be most excellent. The Board of Education will undoubtedly find it much sounder professional practice to promote assistants to principalships than to promote good high school teachers to these important positions. In the first place, excellent teaching ability is no guarantee of fitness for administrative position and in the second place, the typical high school teacher knows little of the peculiar problems of elementary education. Other Administrative and Supervisory Officers In establishing salaries for the higher administrative and supervisory positions of the school system the Committee was guided by the same principles as it accepted in the determination of other schedules, but certain principles were accepted as of greater -172 - importance in this field of its deliberation than in others. It was agreed by the Conmittee, for instance, that the establishment of relatively high salaries for the highest administrative positions, while costing the city very little because there are so few of these positions, should yield a very great return in the stimulation to professional achievement which it would generate in the entire school system. In reconmnending these salaries the Committee assumes that these positions would be filled by those candidates whose merit and fitness for the particular position were most outstanding and that full publicity would be given to the considerations which guided the Board of Education in their selections. It is not enough that selections be made purely on the basis of merit and fitness for a given position; care must be taken that even the lowest-paid teacher in the whole system may know that each important position has been filled by the candidate of outstanding fitness for that position and that the selections are made for merit only. The Committee recommends a salary of $25,000 for the superintendent of schools. This proposed salary is probably $10,000 higher than is paid in any other American city but it is not disproportionate as compared with $15,000 in Chicago with a school system only half so large, or of $12,000 in Philadelphia and Cleveland, and (12,500 in Detroit. If every teacher in the New York public schools knew that the superintendent of schools in New York City held that position because he has proved himself to be the ablest administrator in the United States, the Board of Education could well afford to pay an annual salary of $50,000 -173 - or more for this position of anique importance. It must be remembered that the position does not have the stability of tenure which charaoterises many other administrative positionm. When one compares the salaries paid to the executive heads of industrial and b]siness organisations whose administrative responsibilities bear no such direct relationship to the -very heart and soul of our national life he does not find it a difficult matter to Justify a proposal of $25,000 per year for the superintendent of schools in New York City. The purchasing pover of the proposed salary is only 25 per cent greater than that of the salary of the superintendent of schools in 1910. In proPising salaries of $15,000 each for associate smperintendents of schools the Committee as guided by the considerations outlined above and by the most common relationship between the salaries of the superintendent of schools and his associate suxerintendetsa in other American cities. Under the plan of administration in operation in New York City these men constitute with the,mperintendent of schools the Board of Superntendents, which is held responsible for the developnmet of educational policy and the execution of policies adopted by the Board of Edmoation. It is ispossible to over-estisate the iuportance of these educational positions in the city school syst-em, or the very great necessity that each of these positions be filled by an educator of outstanding fitness. -174 - The Board of Examiners occupies a unique position among the administrative officials of the New York City schools. Its functions are largely judicial in nature. All of the arguments which are generally accepted in favor of the payment of large salaries to our federal, state and municipal judges apply with even greater weight to this position. Each member of this Board must be a man of known integrity and broad professional culture. No single function of administration bears a more direct relationship to the success or failure of public education in New York City. The Committee reconmmnds a salary of $13,800 for members of the Board of Examiners. The district superintendents of the New York City public schools occupy a peculiar educational position. A sound plan of school administration would seem to demand that a district superintendent be the leader in supervision and the administrative representative of all types of schools within his particular area of the city. In actual practice the typical district superintendent is held responsible for the elementary schools only. It is true that two or three of these superintendents are assigned to high schools and to teacher training schools, but in-general these positions are thought of as having responsibility for the elementary schools only. The result of this plan of organization has been that the district superintendents have been thought of as of equal rank with high school principals -175 - and have received exactly the same annual salary or, in recent years, $100 a year more than the high school principals Because of this practice and the tradition which surrounds it, the Citizens' Comittee revised its first tentative proposal of a salary of $12,600 for district superintendents and recomsends that they be paid $11,100, a salary only $500 higher than the mazimm for high school principals.. It is entirely possible that the Committee gave too much weight to the protestations of the district superintendents themselves, the high school principals, former members of the Board of Education and to members of the Citizens' Committee who were themselves in close touch with the public school system and its traditions. In any other city than New York it would seem to be true, certainly, that district superintendents should receive a salary greater than high school principals - probably about half-way between the salary of high school principals and that of associate superintendents. It is entirely probable that even in New York the district superintendency will come to ococpy that intermediate administrative position between the principals of all schools and the Board of Superinteleents* The proposed salary of $11,100 represents the Conmittee's attempt to retain the present nominal difference between the $6500 paid to high school principals and the $6,600 paid to district supeintendents. It is a recognition of the present wsumal relationship between district superintendents and high school principals and does -176 - not represent the Committee's ideal of sound educational administration. The title of Director is used by the Board of Education to designate positiors which tary widely in their importance and exercise of responsibility, One firector may have complete responsibility in enforcing compulsory at-tendance or may have cawplete charge of an important bureau uch as that of reference and research. Another may be a Director of Sewing or a Director of the Art in high schools. The problem of recommending salaries for this type of position is further complicated by the fact that there are assistant directors, inspectors, assistant inspectors, supervisors, psychologists, and many other positions grouped within this same schedule -- Schedule No 155 of the General School Fundo It would hare required an intensive survey of this whole field of "specific professional control" in order for the Committee to have made intelligent recommendations with respect to salaries. After ach discussion the Committee took action to request the Board of Education or the Board of Superintendents to classify this large group of diverse positions into whatever number of classes or grades they might consider desirable. With such a classification available it would than be possible for the Citizens' Committee to make recommendation with respect to a schedule of salaries for this group. At the time of the writing of this report the Committee is awaiting such action by the Board of Superintendents. The schedule of salaries proposed for teacher clerks, library assistants, clerical and laboratory assistants and attendance officers -177 - are reported in the chapter irmediately following this one. Small increases are proposed for teacher clerks and library assistants, but no change in salary is proposed for attendance officers and for clerical and laboratory assistants. These positions are more directly comparable to corresponding positions in business and in mmicipal administration and require salaries only'high enough to meet effectively this competition. For instance, there would seem to be no defense for paying attendance officers a salary substantially higher than that received oy a city policeman, or in paying clerical and laboratory assistants salaries high enough to secure applicants whose qualifications are higher than those needed for the successful carrying en of these positions. To illustrate again, it is probably indefensible to pay so high a salary to laboratory assistants that college graduates will apply for this position which is really intended to be that of a special janitor to care for apparatus in science laboratories of the high schools. Schedules for Specil Types of Schools Tne Citizens' Committee recommends.that the teachers in day vocational and trade schools shall be paid according to the schedule for senior high school assistants. This proposal gives these teachers a higher status than they are now accorded. The Conmitrtee has made this recommendation because two-thirds of the pupils in these schools are graduates of elementary schools and are therefore of senior high school level, both in age and in previous training. The Committee -178 - also wished to maie it possible to transfer teachers back and forth from these schools to the industrial and trade departments of the regular senior high schools. Although the academic training of this group of teachers is lower than that of the regular senior high school assistants, the difference in academic training is fully compensated for by the requirement of practical experience and training of these teachers in trade and in industry. The Committee also reconmends that the teachers ih parental and truant schools be paid according to the schedule for junior high school teachers and that the administrative officers of these schools and of the compulsory continuation schools be paid according to the corresponding junior high school schedules. It is proposed that the teachers in compulsory continuation schools be paid according to the schedule for the same grade of teaching in the regular schools. In other words a teacher of children of elementary grades in the continuation schools should be paid according to the elementary teacher schedule and a teacher of junior high school subjects in the continuation schools would be paid as a junior high school teacher. It is not necessary to go into greater detail concerning the determination of these schedules for special schools. The Committee was guided throughout by the age and status of the pupils, by the instructional demands made upon the teachers and by the requirments of efficient, frictionless administration. -179 - Per Diem Schedules There is no occasion to go into great detail in explaining the Committee 's method of arriving at the schedules recommended for those employees of the Board of Education who are paid a per diem wage* All of the evidence which the Committee could secure indicated that many of these teachers and supervisory officers are at present greatly underpaid. In general the recommendation of the Committee is for a considerable increase in the present schedules. Just as the Committee has reconmended that day vocational and trade schools be placed at the senior high school level of salaries, it has also recommended that the teachers of evening trade schools be paid as much as the teachers in the evening high schools. The schedule for substitute teachers is made high enough that it will no longer be possible for the Board of Education to save money by temporarily filling vacancies in regular teaching positions by giving a substitute a regular assignment for a semester or a whole year to this position. At present it is possible to assign a substitute in the elementary school to a vacant position and allow her to carry the full teaching load for a whole year at the total salary of approximately $1,000 although the minnimw salary which may be liaid to a regular elementary teacher the first year of her employment is $1,500. The propoial of the Committee will make it just as inexpensive to appoint a regularly qualified teacher to such a position as to fill that position with a substitute teacher. -180 - CHAPTER VI THE PROPOSED SCHEDULES It is the purpose of this chapter to present in concise form the schedules adopted by the Citizens' Committee on Teachers' Salaries and recommended for each teaching group. In the preceding chapter a number of these schedules are reported in connection with the discussion of the actual procedure used in determining them. The schedules in effect at present in the New York City schools are here reported in parallel with the schedules recommended by the Committee. This arrangement should make it very easy to discover the significant facts concerning the Committee's recommendations: (1) The proposed schedules are, with few exceptions, higher than the schedules now in effect; (2) Each annual salary proposed is evenly divisible by 12: (3) In all of the schedules for teachers the annual increases proposed for the first three or four years of a teacher's experience are smaller than those recommended for later years of her teaching experience; (4) Super-maximum salaries are proposed for teachers in the regular day schools and for the principals of elementary schools. -181 - smu.HRY OF PROPOSED SALART SCHEDULES A. SCHEDULS FOR TEACHESS IN REGULAR DAT SCHOOLS Name of Group A. Kindergarten to 63: Present Schedule Proposed Schedule 3. Junior High Scbool and Grades 7 - 9:. Present Schledule Proposed Schedule Minimum Regular Regular Salary Annual In- Maximum crements Slw $#1500 11 x $125 $2875 $3l420 (5 x $152) $5060 (5 x $168) ( X $180) $1900 9 X $150 $53250 $1980 (3 x $156) $3960 (6 x $252) Additional Increments SuperMaximum Salary 5 z $216 +$5708 S z Vp252 p4716 C. Senior High School Assis Present Schedule Proposed Schedule D, Senior High School First Assistants: Present Schedule Proposed Schedule 3. Teachers of Atypical Pupils: Present Schedule Proposed Schedule I * Trainig School Teachers Present schedule Proposed Schedule 12 x $150 $5700 - (4 x $192) $4560 3 x.4252 45316 (6 x $252) $5200 5 x $200.$4200 $5700 3 x $500 $6600 (5 x $1560 $4080 (6 x $252) 12 x $150 $5700 10 x $264 $504,0 3 x $252 $4836 3 x $252 j~5796 The auPer-maximum for each of the groups listed above shall be paid -to those teachers who have secured one year of approved professional preparation over and above the 'minimum professional training required of all teachers who take the examination for that particular license. It will be noted that the Committee does not propose a super-maximum salary for senior high school first assistants. -182 - B. SCHEDULI A.IINIS' Name of Group Minimum G. Elementary Principals: Present Schedule $3750 Proposed Schedule $5064 H. Junior High School Principals: Present Schedule $3750 Proposed Schedule $6600 I; Senior High School Principals: Present Schedule $6500,Proposed Schedule $9000 J. Assistant to Principal (a) Elementary: Present Schedule $3400 Proposed Schedule $5780 (b) Junior High School: Present Schedule $3400 Proposed Schedule $4080 K. Teacher Clerks: Present Schedule $1200 Proposed Schedule $1320 L. Clerical and Laboratory Assistants: Present Schedule $1500 Proposed Schedule - M. Library Assistants: Present Schedule $1700 Proposed Schedule $1800 ES FOR PRINCIPALS AND OTHER 1RATIVE OFFICERS OF REGULAR DAT SCHOOLS Salary Regular Regula Annual In- Maxinn crements Salar" Lr r 4 x $250 3 x $360 4 x $250 3 x $500 None 3 x $600 2 x $100 4 x $240 2 x $100 3 x $240 7 x $100 10 x, $120 12 x $100 10 x $100 10 x $156 $4750 S6144e $4750 $8100 $6500 $10800 $3600 $4740 $3600 $4800 $1900 $2520 $2700 $2700 $3360 * It is reconmended that elementary principals having six years of approved training beyond high school graduation shall receive a super-maximum salary of $6900 to be reached by three annual increments of $252 each beyond the regular maximum salary of $6144 for all elementary principals. As explained in the preceding chapter the position of Junior high school principal has never been created officially by the Board of Education. The proposal of a schedule -183 - for Junior high school principals and for assistants to Junior high school principals is therefore contingent upon the establishment of these positions* The official action of the Citizenst Committee was to the effect that it recommended the adoption of these schedules "if and when the positions are established," The Committee recommends that the salaries of the training school officials other than teachers shall be those proposed for the corresponding positions in the junior high schools. The Committee makes no reconendation concerning a schedule for clerical and laboratory assistants in senior high schools. Analysis of the returns of the Committeets Inquiry Blank showed that a considerable proportion of those in this group were college graduates. Careful investigation by the Committee has shown that the relatively high salaries already paid to these assistants has attracted to the positions a group pf persons whose educational qualifications are higher than the positions warrant. The Committee therefore makes no reoonmedation with respect to this schedule. C. SCHEIULES FOR POSITIONS IN SPECIAL SCHOOLS N. Day Vocational and Trade Schools: Schedules same as Senior High School Schedules 0. Parental and Truant Schools: Schedules same as proposed for Junior High Schools P. Compulsory Continuation Schools: Schedules same as those for holding corresponding licenses in regular day schools. -184 - The Committee has accepted the function of Trade Schools as equivalent to senior high schools so far as the salary for these positions is concerned. In like manner it recognizes the parental and truant schools as on a par with Junior high schools. At the present time definite licenses and salary schedules have not been established for ooppulsory continuation schools. Administrative officers and teachers of these schools are assigned from other schools and are paid according to thoqe schedules under which theq workedbefore entering serrice in the continuation school. Me recommendation of the Citizens' Committee is that the prosent policy with respect to payment be continned and that teachers and administrative officers receive the new salaries proposed by the Committee for those of corresponding license. As in the case of junior high school principals, the Committee recommends that if and when these licenses for' teachers and administrative officers of continuation schools are established by the Board of Education the holders of these licenses shall be paid according to the senior high school schedules recommended by the Committee. Q. Superintendent of Schools R. Associate Swuerintendents S. raminers r. District Superintendents U. Attendance Officers: Present Schedule Proposed Schedule D. SAlARIES OF lRAL AIIIISAT!I OFFICEBS Present Proposed 6o,-oc,Tooj50 $ 8,250 $15,000 $ 7,700 13i,800 $ 6,600 $11,100 Miniaum Salary Regular Anmual MaxiMum salar Inbrements -184a The first four of the schedules presented above have been discussed in considerable detail in the preceding chapter on pages 172 to 177. It 4q not necessary to discuss them further in this chapter* As is explained in the preceding chapter the Committee has postponed recommendations concerning a schedule of salaries for directors, assistant directors, inspectors, and the other officers who are listed under the general title of "Specific Professional Control" in Schedule No. 155 of the budget of the Board of Education. The Committee does not feel that it is competent to make recommendations with respect to the salaries of the attendance officers. The duties of an attendance officers differ widely from those of the administrative, supervisory and teaching force of the public school system. The facts asked for on the Committee's Inquiry Blank were not such as to be of value in appraising the qualification of these officers. The establishment of a salary schedule for this group is a proper subject for a separate study by the Board of Education and the klayor's Committee on Teachers' Salaries. -184b R4'PJIR DI3A SCHEFtJL 1. Substitutes (a) 31ee Present Schedule 5 Proposed Schedule ($6. (b) Juinior' High School Present Schedule $5 Proposed Schedule ($84 (c) Senior Hiigh School Prepent Schedule $ Proposed Schedule (4l( 2. Home Teachers of Crippled Children: Present Schedule Proposed Schedule j9.20.000,20.000 per day per -first 300 days per day thereafter per day per fi rst 500 days per day thereafter,.00 per day ). per first 500 days -e per day thereafter..00 per day first two years thereafter 3. Evening Schools: (a) High Schools and Trade Schools; Teachers:.Present Schedule Propo sed Schedule Assistants to Principals: Present Schedule Proposed Schedule Principals: Present Sohedule Proposed Schedule.Sitpervi sors: Present Schedule Propo sed Schedule Clerical Laboratory and Library Assistants: Present- Schedule Proposed S3chedule 46.50 per day $8.000 '99 $6.50 per day, $9.00 if" $12915 per day.l41400 " 9 $9.00 per day. $10. f' $3.90 per day 4 5.000 "'9.4"-_ E, PER DIE SCHEDULES (continued) (b) Elementary Schools Teachers, probationary Present Schedule 4.*50 per day Proposed Schedule 5.0O0 "w Teachers, permanent: Present Schedule $5.50 per day Proposed Schedule j7.00 " " Teachers in charge, Fewer than 12 Classes: Present Schedule $5.20 per day -roposed Schedule $8.00 " Teachers in charge, 12 or more Classes: Present Schedule $6.50 per day Proposed Schedule $9,00 " Principals and Supervisors: Present Schedule 7.,80 per day Proposed Schedule $10. " " General Assistants, Probationary: Present. Schedule Proposed Schedule $5,00 per day Permanent: Present Schedule Proposed Schedule $7.00 per day 4. Vacation Schools: (a) High Schools Teachers: Present Schedule Propo ed Schedule Assistants to Principal: Present Schedule Proposed Schedule Principals: Present Schedule Proposed Schedule Clerical Assistants: Present Schedule Proposed Scheduile 8*.00 per day 10. " " $600 per summer session $900 per summer session $6.00 per day -186 - E3 PER DIEI SCHEDUES (continued) 4. (b) Elementary Schools Teachers: Present Schedule Proposed Schedule Assistants to Principal: Present Schedule Proposed Schedule Supervisors: Present Schedule Proposed Schedule Principals: Present Schedule Proposed Schedule $3.90 per day ($6.00 first two years ($8.00 thereafter #9.00 per day?7.80 per day $14. " " $5.85 per day $10. n - 5. Community Centers and Vacation Playgrounds: Teachers: Present Schedule Proposed Schedule $3.25 per day ($6.00 first two years ($d.00 thereafter Ass't Teachers, Librarians and Pianists: Present Schedule Proposed Schedule Substitutes: Present Schedule Proposed Schedule Supervisors: Present Schedule Proposed. Schedule Principals: Present Schedule Proposed Schedule $4.00 first two years $6.00 thereafter $1.95 per day $4.00 " w 7.80 per day 11. $5.20 per day $10. f 6. Afternoon Athletic Centers Teachers: Present Schedule Proposed Schedule Supervisors: Present Schedule Proposed Schedule 6 6.00 per day $8.00 per day 7. Adult Classes in English and Citizenship: Proposed Schedule: Substitutes $4.00 per session Temporary Teachers $4.50 per session Permanent Teachers $5.50 per session -187 - There is no occasion for lengthy discussion and explanation of the per diem schedules. In general the proposals of the Committee are for increased rates of pay. The Committee has attempted to make these schedules fair and equitable by studying carefully their relationships to the schedules proposed for full time teachers and the relationships of each per diem schedule to the other part time schedules, It has already been pointed out that the proposed schedules for substitute teachers who have had more than 500 days of substitute teaching will give each substitute teacher who is assigned to full time teaching an amount approximately equal to the minimum salary for regular teachers. The Committee has proposed schedules which place the evening trade school teachers on a par with the teachers of evening high schools. The considerations which influenced the Committee in this action are discussed fully in the section which relates to the proposed salaries for the day vocational and trade schools on page of this report. It will be noted that section #7 of the per diem schedules for teachers of adult classes in English and Citizenship proposes rates of pay on the "per session"- basis rather than so much per day. The explanation of this recommendation is, that since these classes meet at different hours during the day, some of these special teachers are able to teach two sessions per day. Others of course teach only one session. It is therefore impossible to pay them on the per diem basis as in the case of evening schools or vacation schools which have a single session per day. If one of these permanent -188 - teachers is assigned to two sessions per day, for four days each week she can receive a maximum salary of $44.00. COST OF THE PROPOSED SCHEDULES In the case of practically every schedule reported in this chapter the Citizens' Committee has recommended a substantial increase. It stands to reason that increases of separate schedules most be accompanied by an increase in the total teacher salary budget of the city New York City is at present expending approximately $87,000,000 per year for the salaries of teachers and administrative and supervisory officials in the -public school system, regularly employed. The Auditor of the Board of Education has taken the schedules proposed by the Committee and has worked out an estimate of the increase in the salary budget which would be necessitated by the immediate adoption of the proposed schedules* This estimate could not be made with great exactness because of lack of authoritative information with respect to such elements as the amount of professional preparation which would be credited to individual teachers. A part of the estimate is as accurate as could be expected in any financial forecast. This part has to do with the schedules for all teaching groups up to and including the regular maximum salary proposed by the Committee. That part of the Committee's -189 - schedules does not differ markedly from the present system of paying teachers except in the amount of the annual salaries proposed at the different yearly levels of the respective schedules, The Auditor's estimate of the increase in cost which would result from the adoption of this part of the Committee's recommendations is a total of $17,657,000. The detail of this estimate of increased cost is presented in Table II TABLE II ESTIMATED COST FOE 1927 OF PROPOSED SCHEDULES Exclusive of Super-maximm Feature Prepared by Auditor of the Board of Education Estimated Cost Number of Citizens' of Persons Committee Tear 1927 Schedules General Professional Control 50 Specific Professional Control 98 Principals of Elementary and Junior High Schools 419 Assistant Principals and Senior Teachers in Charge of Schools 23 Assistant Principals 651 Teacher-Clerks 736 Kindergarten - 6B Teachers 16,290 7A - 9B Teachers in Elementary Schools 2,834 Junior High School Teachers 2,186 Teachers of Atypical Children 753 Teachers of Special Subjects 980 Parental and Probationary Schools 19 Day High Schools 4,787 Training and Model Schools 212 Day Vocational and Trade Schools 198 Compulsory Continuation Schools 351 Visiting Teachers Substitute Teachers in Elementary Schools Variable Substitute Teachers in High and Training Schools w Substitute Teachers in Vocational Schools Home Teachers and afternoon Classes for Cripples " Teachers of Adults in English and Citizenship Evening High and Trade Schools Evening Elementary Schools Including Supervisors of Special Branches Vacation Elementary and High-Schools Including Summer Sessions of institutional Classes Community Centres and Playgrounds Baths Afternoon Athletic Centres Pupil Teachers Attendance Officers 308 Administrative Civil Service Enployees 1,500 Custodians, Elevator Operators, Firemen, Cleaners etc. 900 Estimated Cost for 1927 for Vacancies and New Positions to be organised between March 31st 1926 and December 51, 1927 2,512 TOTAL 34,807 $ 245,700.00 627,736.00 7,294.00 738,760.00 352,900.00 3,518,089.00 1,773,946.00 1,276,526.00 561,664.00 601,048.00 12,714.00 4,427,939.00 307,980.00 161,555.00 188,851.00 677,440.00 215,220.00 25,344.00 58,680.00 58,000.00 265,888.00 176,000.00 130,000.00 130,000.00 150,000.00 150,000.00 150,000.00 150,000.00 150,000.00 988,000.00 $17,657,454.00 * No recommendation by Citizens' Salary Committee. -191 - It is sigmificant that the offic-ial astimate of the-increase in the aalary budget which would have been necessitated by the adoptIon of the scebdules proposed in:the Riceaa'Strauss Bill - the bill drafted by the several teacher organisations and vetoed, by Governor Smith - would, have been $18,,823,000* In other words,, the Ricca.-Strauss Bill perpetuating or increasing many of the unfair discriminations existing In present schedules would have foost. *1166,000' more than the corresponigsection of the recosmmendations off the Citisens' Committee. It is explained in the precedn chapter that -one of the most. important recomendations of the Citimens' Committee is that' of a super-smaximum salary to be paid to tqachers of. ourtstan gprofewsson-' al preparation. It is impossible at this time-for the Auditor or for any 6ne else to make an authoritative estimate as to the increased post which would result from the operation of tk~is featuxeof the Committee's recommuendations* It will be recalled that it is recommended that only those teachers should qualify for the super-mxim who have hAd one year of aproved professional preparation'beyond the standard- 1minimum qualifications fur' the license which they hold. It is true that individual teachers reported to the Committee the oMot and kind of professional preparation which each had secured,, but there is no wyof estimating what part of this training would be accepted for approval, toward super-m-eximum salaries*. The-bos-t gueesthat can be made from the evidence at present available is that the super-maximum feature of the Comnittee s recomendations would cost a little over two and a half millions of dollars, ($2,500,000} the first year of operation of the proposed schedules. It will be remembered that only those teachers who are already at the maximum salary for each group will be eligible to qualify for the super-maximum. This estimate of $2,500,000 is based on the assumption that approximately 10 per cent of the elementary teachers who are now receiving the maximum, 40 per cent of the teachers of junior high schools and grades 7 to 9 and 50 per cent of the senior high school teachers who are at the maximum would be able to qualify for the first additional increment toward the supermaximum salary. Twenty-two per cent of the women elementary teachers are now receiving the maximum salary of their schedule, $2,875. It is an accepted fact that the younger teachers who have not yet attained the maximum tend to have more years of professional training than do the older teachers. One explanation of this fact is that most of the older teachers qualified for their license when only two years of training beyond high school graduation were required. If only 22 per cent of this entire group, old and young, maae claims to as much as four years of training beyond high school, it seems an entirely conservative estimate that less than 10 per cent of this older group who are at the maximum would be able to meet the qualifications set up for the super-maximum. It seems reasonable that -193 - the addition to this group of those teachers who have had thirty or more years of teaching experience would not raise the number above 10 per cent of those who are now at the maximum salary for elementary teachers. The same sort of reasoning was accepted in estimating the percentages of other teaching groups who would qualify for supermaximm salaries* A consideration of all of the factors discussed above leads the Committee to accept twenty millions of dollars ($20,000,000) as the most.reasonable estimate of the increase in the salary budget the first year the full recommendations of the Committee are put into operation. The Citizens' Committee did not accept it as a part of their responsibility to make a careful study of the public funds available for increasing teachers' salaries. A number of members of the Citizens' Committee were also members of the Friedsam Commission, however, and other members of the Committee are thoroughly familiar with its fundamental study and its recomerdatiorns. The Committee wishes to go on record as endorsing the recommendations of the Friedsam Commission as embodied in the so-called Rice-Cole Bills providing for increased state-aid to local school districts. These bills are now before the Legislature of the State of New York. It has been stated repeatedly in this report that justice to the teachers themselves as well as a consideration of the riigts and needs of the school children of New York City demand such increases in teachers' salaries as are proposed in this report, and the Committee accepts the provision of the RiceCole Bills as a sound and fair solution of the problem of securing the necessary funds for this purpose. It is estimated that putting the provisions or this bill into operation would yield to New York City an additional fifteen millions of dollars for school purposes the first year. This would make it necessary for the city government to provide not more than five millions of dollars beyond the present appropriation for school purposes. Since these state aid bills provide for increased payments to local school systems through three successive years, the bills are ideally suited to finalce the increasing expenditure for teachers' salaries as those teachers who are qualified for the super-maximum become eligible for the second and third additional increments. -195 - CHAPTER VII THE COMaITTEE'S PUBLICITY AND OUTCOMES OF ITS STUDY. The need of intelligent support for a public enterprise, such as that initiated by the Citizens'Committee on Teachers Salaries, gave rise to a publicity campaign. Publicity, in this sense, can be made to serve both the community and the organization behind it. It was the aim of the Citizens' Committee so to direct its publicity policy not only that public backing might be gained but that an intelligent public opinion might be created, since without it but little can be accomplished. The Committee considered as part of its legitimate function the stimulating of this interest in a problem more vital to the community than ary other - the securing of proper educational facilities for its children. The committee set out,therefore, with the realization that the work of investigating the present status of teacheer' pay and the making of constructive suggestions for its revision were but part of the service it might render the community. Fully as important a task was that of bringing forcibly and impressively to the public mind the need for an enlightened cooperation. Surveys, no matter how scientific and scholarly in method, are usually but of academic interest unless backed by the momentum of active public opinion. Such support enhances the possibilities of the committee's recommendations be -196 - ing uitilized - translated into law. It was to insure this desirable end that a Publicity Committee was created. The publicity policy was carried out by the Committeefs Executive Secretary* -197 - PUBLICITY PROGRAM Members of the Citi3ens Committee Cotfere nce s-rc4res Sto-ries it New5 ColvwEIns of Papers Editori a I s'eature Art icl es - Leters Conferences - Addresses 5tories on. School a9 es of DaLly Papers,irticles in Ecic.atLontat PaMications Le tt e rs3 -198 - As a result of national publicity featuring the fundamental scope of the inquiry, many cities became interested in the organisation of the Citizenst Committee. To such conmmnities detail on the organisation of the Committee may be of interest* As a preliminary step most careful consideration was given to the proper and most effective organization of the Committee. M&Wy conferences and talks with leading citizens gave rise to a concrete plan and a definite program of procedure. It was decided that the four elenmnts absolutely essential to the success of such a committee were: (1) the selection of its Executive Committee, (2) the engaging of an expert of outstanding ability and reputation to conduct the survey, (3) the appointment of an Advisory Committee of Experts in economic and statistical surveys and (4) the appointment of an Executive Secretary to handle "contacts" and direct the publicity policy. In the selection of its Executive Committee - the first step - much care was exercised that its personnel be representative of an impartial and non-partisan viewpoint. Only those individuals were urged to serve, therefore, whose back-ground of civic, social or educational interests was such as to inspire the confidence of tax-payer and the city's teaching force. To assure an impartial, unbiased attitude on this committee, no one remotely affiliated with the city's school system was invited to serve. It was thought that the chief contribution such a committee could make would rest on the fact that it was an entirely outside body. With these limitations on its membership in mind, the following citizens were chosen to serve on the -199 - Executive Committee: Ms. H. Edward Dreier, President of the Women's City Club Frederick H. Ecker, President of the New York State Chamber of Commeroe Joseph P. Cotton, President of the Public Education Association Mrs. Seymour Barnard, President of the Parents League of Brooklyn Miss Martha Draper, Vice-President of Public Education Association E. W. Edwards, Chairman of the Committee of Education of the New York State Federation of Labor Dr. John H. Finley, Chairman of the Educational Committee of the New York State Chamber of Commerce and of the Merchants Association Dr. Lee K. Franloel, Vice-President of the Metropolitan Life Insurance Company George J. Hecht, Editor of "Children". Raymond V. Ingersoll, Impartial Chairman of the cloak, suit and skirt industries E-Serntor Charles Co Lockwood John Martin, Ex-Member of New York City Board of Education Mrs. Henry Moskowits, Member of Board of Directors, Women's City Club Mrs. George V. 1Mllan, Former member of the Board of Education Lawson Purdy, Secretary of the Charity Organization Society Nelson S. Spencer, Former President of the Men's City Club Mrs. Joseph Swan, Trustee of Teachers College, Columbia University. The next step was the acquiring of an advisory committee. Four of the leading statisticians in the country agreed to serve in this capacity. The function of this Committee was to keep in touch with the progress of the Director's work, to advise the Committee, and, when called upon, to check up on the methods pursued in securing data. It was the Comnittee's good fortune that men of such outstanding ability as the following consented to give their valuable time. to this important task: -200 - Donald R. Belcher, Statistician, American Telephone and Telegraph Company. Dr. Louis I. Dublin, Statistician, Metropolitan Life Insurance Company. Professor lillford I. Kind, Economist, National Bureau of Economic Research, Inc. Dr. Albert Shiels, Teachers College, Columbia University. The third important decision to be made by the Committee involved the engaging of an expert to conduct the survey. With the concurrence of the Advisory Committee, Dr. J. R. McGaughy, Head of the Department of Elementary Education at Teachers College, Columbia University, was chosen. His unquestioned ability and notable achievements in the field of financial surveys had won national recognition. It was imperative that the man selected to act as Director of the investigation be an expert of outstanding reputation in whose statistical and scientific work both the Committee, the tax-paying public and the teachers might have confidence. Dr. McGaughy and the E:ecutive Committee planned the scope of the survey. At each stage of the investigation Dr. McGaughy conferred with the Executive Committee in its five-fold attack on the problem. He was always available for addresses to the public and to the 'teachers for conferences with school administrators, local and out-of-town, and for personal interviews. -201 - With the appointment of Miss Marinobel Smith as Executive Secretary, the fourth and one of the most important features of the Comnittee's organization policy was achieved. Much depended on the ability of the Executive Secretary to handle "contacts" and to direct the publicity campaign. To other cities contemplating the organization of a similar committee, a word might be said here of the manifold duties of such a committee's Executive Secretary. From the moment of its organization, the committee depends on this official to keep its own members, the city's educators and the general public constructively informed of its activities. It is the function of the Secretary to keep in constant touch with members of the Steering and Executive Committees. The former committee consisted of five members chosen from the Executive Committee to carry on the more active work of the Committee. On all questions of committee policy and procedure, the Secretary must know when to call conferences and public meetings; when to arrange for interviews and conferences with the teachers and administrative officers of the school system, with civic and educational associations and with the general public. Through letters, personally written, this executive keeps other commnmities throughout the country advised of the Cormnittee's progres s. Not the least service rendered by the Secretary is the conduct of a campaign for finances to run the Committee, But by far the most constructive and significant work done-without which the committee's survey could not have gained the confidence of public and educa-202 - tor - is that carried on under the title of "Publicity". The Committee was most fortunate in having as its active chairman, a man whose life has been devoted to the promotion of educational welfare - to safe-garding and seeing enhanced the quality of instruotion received by the cityts public school children, As the Committeets active executive, it was his duty to serve as its spokesman before public and private gatherings. As its official representative in the camps of friends and critics, it was the chairman's unflagging zeal that contributed no small part to its essential success. THE PUCLICITY PROGRAM In advertising parlance the business of selling the importance of teacher salary adjustment to an apathetic and in some instances an actively hostile public, was a "contract" beset with difficulties. It became necessary to satisfy the teaching and administrative staff that this was not just another of those surveys that investigated and investigated without getting anywhere. For the benefit of the city's legislators, state and city officials and, when created, the members of the Mayor's Teachers' Salary Committee, all data giving a true and accurate picture of the economic and professional status of the city's teachers was accorded immediate publicity. A series of twenty articles presenting this information in detail was printed in New York City papers. -(ee page 204 for typical headlines). -205 - Wa a rInac am I r+o&A +r, ih n ivY it U of Sf t. u A PeDOAinC in MtrnPnlIitan Pre Ss I3I~,Ak ~ V,,,J~, &,,..~.~.r V I V, v j,~.l,". -— I TEACHER PAY SURVEY MADE FOR THE CITY By ILOUIS RICH. e~.,. 9 ~'~. ---- WW~ett ~'~ ' ~ t~ I T - - -'~ q r 1'~,. _ J hi. or h e place. To what extent Is l Citizens' Committee Will Recommend Salary Increases to the Board of Estimate jnadel,...-. I a,, DAlTA I COPLETE, -,Question of the "Cultural Level" Enters the InvestigationITI ICITI'.E~_CALE, 'IIn'terms of purchalalm4wer, ac- other expenses foe t.!ar, a L e. ho,-not - ' - l'llf..aubdl~ CTZ N SCALE yrer. tblss ~6rPUPh~dl~~3rarr, ~?ter epensem afLhc br.hears out. Dr; M e.&ugrhy~ IN INQUIRY ON TEACHISTHAN -----... TEACHERS' PAY CITIZENS' GROUP Junior Teachers Well Prepared MATNITY RUL APPROED AT Publish Prof. A.ic-j - Cour - * — - - College. 150 TEACHERSchoo. Organizations Make GIuahbp - H" f-/e _ Teacher' Pay oV juniorfhih P or Salary Member of the Citizens gradrivtReceive itizens Committee That Many,Shown to ReP TSa on, Teachers'.oal-es announ.ed i,. ve Wool graDrive- Receives. t y to B ^ e. ) terday they would make publ on Teacher __. y have a high few days a detailed report. _ofest r Mothersofhof ree orJECT by Prof. J. R. McOea", Ne ~rato-da a, '..-ECT. tera S - Coll ege, -e mr, N T More Children. era College. c — mie th t thise have no ___________ ee/ved br'mer <4 Itre-ration d'S09000~ QuestiOnna~ires Sent,>ty-m"~ ^ -.ent. of. --- ——. aires Sent o'f dur,n the h teaehl,'y" Out by Citizens' Commit. f/,,. 00 DATA GVEN IN QUEST A /4r" t"h.5. '&<9.,' who.^^ * eI; '. tee on Salaries Will Be, A Oltth *i~r*ccamit,', a ' Who 1 / Anw vra The committee ha -,k \Y <~.,V. %;"'tt.dV~, ~N~ '. rT' A ~^ /T T....... - -- A '7 ~rr- A mmttee lned paana A a 5 o,.%,l. J --. ' _ te 78,ed ~dunted u a nall asll a.vth the.alari al lp...., _ ~*,~x-^C ' ~^ ^ ___ _ __ __ ~rr-a' n! g roup which took exep ewut e..p' - *, r Saleand at prevlou dat.j oon ~-l e -- dfor me dtes.. e, * c S e *or the b ommee has 4. emeAthe ealaries whIch It wouly e. Five 'f the fifteen m...' nn Wn.~' '.A. ~ fli -7?',0 f~A~~o 1.. INFOlMING THE COMITTEE - THE FIRST STEP. As indicated on the committee's publicity chart, the preliminary step in publicity taken by the Executive Secretary was acquainting the Connittee's members with the nature of, the survey. It was recognized that a Committee of 120 representative citizens with their many affiliations can become, when properly organized, so many assets in the dissemination of information concerning the aims and accomplishments of the orgarisation. Each member of the Citizens' Committee was kept informed of the progress made, of the public's reaction and of the newspapers' support. This was achieved through informative letters, articles in the press, occasional meetings and individual conferences. Since many on its membership were affiliated with the United Parents Association, articles appearing in the "School Parent", the organ of that association, served as a direct appeal to member-interest. The following excerpt, for example, selected from this publication was the first of a series written by the committee's Executive Secretary: "REPRESENTATIVE CITIZENS TO STUDY TEACHRS SALARY SITUATION HEBE Committee to Make Impartial Survey for Good of the Schools A representative non-partisan body of citizens has been organized to study thoroughly the whole problem of teachers' salaries and to recommend ways in which the community can improve school conditions. The group will be knon as the "Citisens Committee on Teachers' Salaries," and may develop into a permanent advisory body having a broad interest in seeing that everything is done to help the teachers and schools to. function -205 - effectively. The United Parents' Associations of Greater New York Schools took the initiative in calling together representatives of a dozen of the leading civic organizations, who invited several hundred representative citizens to attend an organziation meeting, January 28th, at 8;30 P.M. at the Bar Association, and to serve. Part of the letter of invitation reads: "Last year the Legislature passed a bill increasing teachers' salaries. The Governor vetoed the bill, suggesting it was a matter for local action. Subsequently the Board of Zducation voted an increase, but the Board of Estimate threw it out of the budget. "There are over a million children in the public schools of the City of New York, increasing, it is estimated, at the rate of 25,000 per annum. New and competent teachers must be found each year, not only for the additional children, but to replace those who leave the profession by death, disability, or resignation. "For the past six or eight years or more there has been a steady and pronounced decline in both the number and the quality of men teachers entering the schools." Surely the teachers of our public school children, of our future employees, of our future neighbors and citizens, are entitled to a sympathetic interest and intelligent understanding on the part of every public-spirited citizen. Let us get at the facts impartially from the point of view of all concerned, - the children, the teachers, the Board of Education, and the City Administration. It is proposed therefore that a large committee composed of public-spirited citizens, representatives of civic organisationr, labor, representative employers, parents, educators, et al., be organised to ascertain the facts and to recommend such action as may be prompted by the findings. The aim is to secure a group that shall be representative of and function for the best interests of the City." In keeping the committee alive and functioning, there were frequent conferences between the Executive and Steering Committees with the Director and the Chairman. At each stage of its investigations, the members of -206 - these smaller committees were called into conferences. In like manner the interest of the Advisory Committee of Experts was stimulated and retained through letters telling of the committee's activities,through frequent individual and group conferences. Since the purpose of this Advisory Committee,was to serve as a scientific check on all the committee's procedures, the importance of their constant and continous interest was very great. The business of handling this "contact" phase of the publicity compaign is an extremely important characteristic of any successfully organised committee. Properly and adequately executed, it makes for a smooth and efficient working organization. Such an intelligent and united front was absolutely necessary before the Committee could come forth into the broader arena seeking the respect and confidence of press and public. THE COMITTEE VS TE PtBLIC SCHOOL TEACHER ABD II STRATOR. The importance and significance of a survey of teachers salaries by disinterested citisens, as many editorial writers pointed out, lay in the fact that the study was being conducted by individuals outside of the school system. Its recommendations, therefore, would in all probability have more weight. Realising the value in the eyes of the public and of the legislature of a thoroughly impartial and non-partisan attitude, the Committee did nothing to solicit the active cooperation of the city's educators in making its scientific survey. It did, on the -207 - other hand, make every effort to win the confidence of teachers. This was not easy. in the beginning there was an attutude both on the part of teachers and administrators that here was another stalling device - another superficial survey that would befog the issue of immediate salary revision anm net tu teachers nothing. These doubters - and there were many of than - had to oe convinced of the Committee's sincerity and the scientific nature of the study comtemplated. The motive behind the Committee's policy of constantly conferring with and informing the teachers of its procedures was simply to let them know they had a friend at court; a group of public-spirited citizens willing to defend their plea for increased salaries on it merits based on facts brought out by the investigation. At each stage of its operations, the Director conferred with the Joint Salary Committee which represented some sixty-odd teachers organizations. To bring about real harmony and understanding no step was taken without advising this body in advance. The result was the most hearty and enthusiastic cooperation when the Committee really needed such assistance. It manifested itself notably at the time the Director was ready to launch the 30,000 questionaires. The Joint Committee not only voted its approval of the questionaire but called upon all teachers in the system to cooperate with the Citizens Committee by answering it in full. The story of how this early attitude of the teaching staff, one often of suspicion and resistance, gave way to such thorough cooperation is one of the interesting by-products of the Committee's work. It was -208 - accomplished through conferences, personal interviews, addresses to teacher groups, frequent publicity stories in the school pages of the papers and articles in educational journals. Impressed with the Committee's sincerity of purpose, this original attitude of indifference gave way to earnest cooperation. The Superintendent of the New York City School System, Dr. William J.O'Shea, wrote in a letter to the Committee's chairman: "May I close by repeating the expressions of appreciation and gratitude for the very important work which the Citizens' Committee on Teachers Salaries is performing. The school system, the teachers and the supervisors, the parents, the children, are your debtors for your valuable and disinterested service." Illustrative, of the type of article that appeared in periodicals that reached the educator directly are the following excerpts: -209 - School and Society JulV 1926 A PRELIMINARY REPORT OF THI NEW YORK CITIZENS' COMMITTEE ON TEACHERS' SALARIES DATA drawn from more than 11,000 replies to questionnaires were presented recently in a preliminary report of the New York City Citizens Committee on Teachers' Salaries. The analysis was submitted to representatives of various teachers' organizations in the hall of the Board of Education by Dr. J. R. McGaughy, statistical expert of the committee. Dr. McGaughy, as reported by the Sun, referred to the failure of a large number of teachers to answer the questionnaire. "These teachers did not know our personnel; perhaps they suspected our motives. I am glad, however, that we received a sufficiently large return to enable us to get a true picture of teachers' living conditions. This is one of the factors which surely enter into any scheme for the fixation of salaries." Dr. MeGaughy's summary was as follows: The questionnaire classified all teachers into one of three groups as to their living conditions. In the first group there were those who were married and living with husband or wife. In the second group were those who were not married, but were living at home with father and mother, with married sister and so on. In the third group were those not living at home. These last were, of course, paying for their rent and meals on a strictly commercial basis. It is interesting to note that this third group is largely made up of older women in the school system. More than one half of the women living thus have had more than twenty years of teaching experience. Unmarried women living at home average eight years of teaching and the unmarried man living at home has taught only four years. One half the married women teachers have been teacning fourteen years or more. Interesting facts concerning the professional and academic training of the New York City teachers are presented in these tabulations. We find the typical woman elementary teacher has had two and one half years of training beyond high school. The men who are teaching in the elementary schools are largely young college graduates with little teaching experience, receiving an average salary of about $1,800 a year. Junior- high-school teachers average a little less than the equivalent of four years of training above the high schools. New York Teachr March 1926 The Citizens Committee on Salaries The Citizens Committee on Teachers Salaries, brought into being by Mr. Robert Simon of the United Parents Association, E. E. Edwards of the New York State Federation of Labor and Miss Martha Lincoln Draper of the Women's City Club, is a wholesome sign indicating that the public has a definite responsibiliTy in the maintenance of adequate living standards for teachers and in keeping them high enough to attract the finest types of men and women. Regardless of the economic affiliations or background of the members of this committee, it must face the teacher salary problem largely from the viewpoint of the best interests of the cause of public education. The fundamental questions which they must face and answer are: (1) Were teachers adequately paid in 1900 or in 1914? (2) Does the 1926 dollar buy as much as the 1914 or 1900 dollar? If not, should not the teacher have his 1914 dollar returned to him in full? (3) If teachers are entitled to the restoration of their 1914 dollar, is it not the function of this Citizens Committee to use its influence to persuade city and state-officials to do their duty with the utmost despatch and thoroughness? In their efforts to secure adequate salaries for teachers the Citizens Committee will meet with the opposition of various realty groups such as the United Real Estate Association, which has opposed every effort to increase salaries, however necessary. They will even have to clash with groups like the Merchants' Association, which admits the justice of the teachers' cause but fights for "Home Rule," the application of which, experience has shown, will never result in securing increases for teachers. The third group they will have to encounter contains those who will say: "Yes, teachers are entitled to their 1914 dollar, but how are they going to get it?" The test of the strength of the Citizens Committee will come when thev face these objectors. -210 - A resume of the Committee's activities appeared from time to time in educational journals of national circulation. The direct result of this phase of publicity - brought to the attention of the Committee through correspondence - was a country-wide endorsement of the enterprise. In a sense, the Citizens' Committee was establishing a precedent which other cities were desirous of following. Literally dozens of communities wrote the Coomittee, asking for guidance in solving their local teacher salary problems. So interested was the city of Chicago that a group of business men there started plans for a similar investigation of educational matters. William McAndrew, Superintendent of Schools in Chicago, wrote the Committee: "I do think this work is decidedly worthwhile. The idea of an impartial group of citizens attempting to determine the facts concerning such a matter as the salaries paid to teachers is absolutely sound. Such a report coming from outside the teaching profession would be impartial, and the general public would havy much more confidence in it than one coming from the teachers themselves." Another outstanding national educator, Herbert S. Weet, Superintendent of Schools in Rochester, New York, wrote: "Thank you cordially for sending me a copy of your report together with subsequent amendments. It all indicates the most thorough going piece of work that I have yet seen on this very important subject." Similarly appreciative wasthe letter from E.w, Tiegs, Associate Superintendent of the Board of Education in Minneapolis, Minn. An ex cerpt from his letter follows: -211 - "The work of your committee on teachers' salaries is of unusual significance. Not only is it the most comprehensive and authoritative study of salaries ever attempted, but the national discussion which it is provoking is bound to acquaint a great many laymen with the fundamental and vital nature of the contribution of education to the welfare of all other groups which compose our society. The personnel of your executive and supervisory committees should guarantee unquestioned acceptance of your results. I congratulate you on this notable achievement.' Interest in the survey was not confined to the United States. Among the interesting letters from foreign countries was a request for data on the New York study from the General Secretary of the London Teachers Association who wrote, "The information will be useful and valuable to the Committee of the Association". In all such correspondence, from whatever source, there is confirmation of the Committee's often repeated statement that this is the first time in the history of the country that so thorough and scientific a study has been made of teachers' salaries. There seems to be general agreement that in making such a study the Citisens Committee has contributed much to constructive educational research. In explaining the oommittee's publicity approach to state and city officials and the general public, too much emphasis cannot be placed on the value of the newspaper editorial. Constant publicity in the news columns of papers stimulates public interest but the editorial, written by an outsider, an intelligent and respected observer, serves that ineffable purpose of creating public opinion. When such editorial endorse -212 - ment is muanimous, as was true in the case of the Citisens' Committee's study, not only the general public but public officials generally cannot help but be influenced. Examples o' editorials that appeared in all the city's papers, commenting on the survey at certain critical stages in its progress, are here reproduced. -213 - N.Y.Herrld Tr; i une Sept. Z3, 1 T 6. Teachers' Salaries The report of the Citizens' Committee or Teachers' Salaries has the outstanding merit o being based on fact, not surmise. The salary plai which it embraces, calling for increased pay for al teaching groups in the city's school system, is the outcome of six months' study of the situation b: men competent and impartial who spared n, pains to collect evidence and to weigh it. When the Board of Estimate last spring aske< Governor Smith to veto the Ricca bill and other salary bills it made the specific objection tha the bills were not founded on a scientific or dis interested basis. The board resolved to appoin a committee of fifteen to make "a thorough an( scientific study" of the entire question of teachers salaries. That was a sensible step, but the corn mittee has not been appointed. Exactly the worl which it was to do has been done by the citizens committee. The survey under the direction ol Professor J. R. McGaughy, of 'Teachers College with the assistance of several of the country'. leading statisticians, is probably as sound a piece of work and certainly as fair minded as the city could hope to obtain from any source. The Board of Estimate has now a document of undoubted value to aid it in the salary adjustment which it has declined to make at random. By means of questionnaires, to which 11,000 teachers replied, and by exhaustive study of salary schedules of the various groups with reference to the cost of living, the committee has attempted to work out basic salaries on which well trained teachers can live decently and comfortably. The increases proposed are not unduly liberal. They would give elementary teachers, for example, about 104 per cent purchasing power, compared with their 1910 dollar; junior high school teachers about 90 per cent; senior high school teachers between 85 and 90 per cent. The advances barely meet the needs of the teachers as judged by their ascertained economic status. Substantial increases are recommended for executive and supervisory positions. Administrators, who carry the heaviest responsibilities, are at present relatively the most underpaid. This grodp is not large. It is decidedly in the city's interest to put no discouragement in the way of men and women highly qualified for administrative duty. t.Y. Ev e. S-n.nt-. 4. 119 6. Teachers' Salaries. How to remunerate teachers of exceptional merit has always been a problem for those charged with the administration of the public schools. n It is obviously impossible to let the 1 department head in any civil service e system fix the salaries of his suborf dinates-as is done in private emo ploy-on the basis of his estimate of each individual's worth. The result d is that so far as compensation is r concerned every teacher is on a dead t level with every other in his or - her rank. t The Citizens Committee on Teachers Salaries hopes to improve this condition by a plan of "supermaximum" rates. Under the method proposed every teacher performing satisfactory service would receive an annual salary increment for a stated number of years until a "normal" maximum had been reached. For smost teachers this would be attainable- in the tenth year of service. From then on a "supermaximum" of, $200 to $250 a year would be offered for three additional years to such teachers as possessed professional qualifications in excess of those required for appointment, This may not be an ideal plan of compensation, but it is at least better than the present one, which rewards the conscientious and the indifferent in precisely the same way. It would provide recognition for the teacher with sufficient interest in his job to do post-graduate work. It would offer an incentive to others to get out of the rut of daily routine by attendance at summer sessions or evening courses. It should stimulate the entire teaching corps to become better acquainted with the latest developments in a profession which is constantly experimenting with new ideas and adapting them to the purposes of the classroom. There is still another phase of the committee's plan which is commendable. Instead of providing equal salary increments for each year of service it would offer largeradvances after the -214 - prluuUaLlmalry JP1rluu uiiaU ULUtu paJUbU. This is on the principle that during the first few years after appointment the teacher is less valuable than when the theory of the training school has been supplemented by practical experience Professor J. R. McGA.GHny, under whose direction the plan has been drawn up, and ROBERT E. SIMON, who was largely responsible for the creation of the Citizens Committee, have done well to dirlect public attention to the principles which should underlie the determination of teachers' salaries, I4N.Y.Times %eptk.S, 926. THE PAY OF TEACHERS. While it is highly doubtful that the Board of Estimate will be disposed just now to vote more money for the salaries of teachers in the public schools, it ought at least to give serious study to the report on that subject of the Citizens' Committee. This is a document of uncommon force and merit, quite irrespective of the increased pay which it urges for certain classes of teachers. The Board of Estimate is temporarily in a panic about city expenses, and is permanently inclined to delay everything that can be delayed. But it cannot allege against the present plan the objections which were made to former proposals. They were opposed partly because they were regarded as unscientific, not to say haphazard. But the suggestions made by the Citizens' Committee are the result of careful investigation by authorities in education and by leading statisticians. Their report, whether immediately adopted or not, will furnish a model for other cities confronted by the same question, and will give the lead to all future discussions of teachers' salaries ir New York. Its boldness is seen inr its plan to give only a slight increase of pay at the beginning to the largest number of teachers. But this is in order t. prepare the 'way for increments of salary based upon experience and skill. Especially noteworthy is the idea of a "super-maximum salary" for teachers who deserve exceptional recogniition for exceptional service and for additional professional studies which they have taken on voluntarily. It will be seen. that one great object is not only to reward teachers who stay long and serve faithfully in thp system, but to make the work and prospects so attractive that the existing large "turn-over" in the teaching force may be heavily cut down. This is certainly not only scientific but human-motive treatment. It is such qualities that make the report so important and full of promise for the future. N... Eve. Tost Sept.rd, l9*6 It is faint praise to say that the Citizens' Committee on Teachers' Salaries has justified its creation. The report it has made is a model. It'gathered its facts carefully, comprehensively and yet expeditiously; it adopted a scientific basis for its inferences and it proceeded to logical conclusions. If there are flaws 'in its recommendations, they are flaws of dotail rather than of 'principle. The committee carries the idea of reward for preparation to new lengths by proposing a "super-maximum" salary for teachers who do extra work in professional: courses. It also recognizes the claims of those who make teaching a permanent activity by reserving as large a part of the total salary budget as practicable for those who teach more than three years. These are sound positions and thy committee is to be commended for taking them so emphatically. Actual increases recommended are smaller for teachers in the lower grades than for those in the higher, but the 'super-maximum" salary proposed for even the lowest paid is an advance of nearly a third over the present maximum. The report merits the earnest attention of the Board of Estimate. The problem of interesting the general public and the tax-payer in the importance of the investigation was brought about largely through a human interest slant given the Comittee's publicity releases. Such publicity sought to bring to the heart and community conscience of the individual the necessity of his playing a cooperative role in the undertaking. It pictured, wherever possible, the gigantic size and complexity of the New York City school system - likened it to a city of a million inhabitants, administered by a force of 50,000 men and women, spending in a year over a hundred millions of the city's dollars for its up-keep. The problem of managing such a city was emphasized as part of the public's business - the fair treatment of these educators and an investigation of their professional standing as the concern of the community. The pupils of today's public schools become the citizens of the metropolis ten years from now. It was constantly pointed out that a defect in the-machinery of runuIg -nis city of a million children. in any way responsible for getting a poor type of teacher or for the deterioration of a good type of teacher, was information which the community at large should know at once. Newspapers treated all such releases generously. Publications of various civic and industrial concerns also gave space to this publicity. Probably the best sunmary of this phase of the Committee's publicity was contained in an article that appeared in the organ of the Public Education Association in the issue of January, 1926, from which the following excerpt is taken: -216 - "The burden of deciding salary matters should not rest on the staff, but on the public whom it serves and by whom it is employed. For that reason the' formation of this new committee is timely and essential. The committee's first job, as announced, will be to get at the, facts. Its next and biggest job will be to weigh and marshall these facts effectively and to secure promptly the results they may warrant. The meeting for organization will be held on January 28th, at the Bar Association. Many facts are already at hand to begin on. Sources For'Facts The teachers have drafted a salary measure, after two years's study by their Joint Salary Committee. This is based upon the Ricca bill of last year, which was passed by the Legislature only to be vetoed by the Governor, on the ground that salaries should be determined by the local authorities. Following this veto, the Board of Education, after several months of study, drafted schedules which provided increases aggregating scarcely half of what the teachers requested in the Ricca bill. These schedules were rejected by the last Board of Estimate on the ground that the City was not able to finance them. Thus the matter is again completely in the air. The burning question is, "Who is to do what?" Theo staff has been left high and dry, and, unless someone else acts intelligently in the matter, it will naturally go ahead on its own behalf. Facing The Facts The Citizens' Committee will at first find it necessary to appraise the data which underly the requests of the teachers and the supervisory staff, the proposals of the Board of Education and the contention of the City that it is unable to pay. It will then be necessary for it to determine what is just and p ssible and to what extent the cost involved must be shared by the State and the City. Legislation will he necessary whatever the decision, and that makes promptness imperative, Evidently there is not only a big task ahead, but a splendid opportunity for everyone to face the facts and work for a disinterested judgment. There will doubtless be on this committee men of affairs Nho are either employers of large staffs or representatives of great labor organizations. If they will apply to this public task the same insight they use in their private affairs, they can lead the way to a practical and satisfactory solution." -217 - No picture of the Committee's survey is representative and true which does not present both the favorable and adverse criticism that greeted publication of its salary recommendations. It was but natural and to be expected that some groups of teachers would be dissatisfied. No bills prepared by the teachers had succeeded in getting the unqualified support of all teaching groups. Even the Ricca Bill which had such general backing from the rank and file had failed to conciliate several groups within Ube system. Any set of salary schedules, prepared for so huge and complex a group as the city's 30,000 educators, is bound to work what seem to be injustices for some individuals within the separate groups. The reaction on the part of some of the elementary teachers who felt discriminated against in the revised schedules was immediate and emphatic. Briefs were submitted calling on the Committee to revise the schedules for this group o-i teachers, and citing specific reasons and arguments in favor of such changes. The Executive Committee answered this brief, point by point, showing the economic soundness of its procedures in arriving at the proposed schedules. The answer did not satisfy these elementary teachers and the controversy was carried to the press. (The full text of the committee's reply to the brief submitted by the elementary teachers is incorporated in an article that appeared in the New York Evening Sun, October 20, 1926. An excerpt of this may be found on Page 222BI. Briefs from several other groups of teachers voicing similar griev -218 - ances were submitted and, after careful consideration by the Executive Committee, they were answered. With but one exception, the Committee endeavored to meet and answer the criticisms of teachers and individuals outside of the teaching system, either through newspaper publicity conferences, or by correspondence. The exception noted was the case of an individual in whose sincerity and open-mindedness, because of gross misstatements made in the press, the Committee's executive board had little confidence. TE MAYOBS COMISSIOH ON TEACHWER SALARIES With the appointment of an official committee to investigate teachers' salaries, authorized by a resolution passed by the Board of Estimate and Anportionment and created by Mayor Walker, October 10, 1926, teacher salary publicity entered a new phase. The chairman of the Citizens'Committee immediately wrote to Mr. Lincoln Cromwell, the chairman of the Mayor's Committee and offered all the data compiled by the Citizens'Committee. By establishing the policy of giving hearings to representatives of all the teachers' organizations, this group of fifteen citizens, known as the Mayor's Committee on Teachers Salaries, kept the Citizens'Committee's report daily before the public. The hearings gave all groups in the school system an excellent opportunity to voice their respective grievances or endorsements of the Committee's plan aid schedules. -219 - There was no feature of the plan suggested by the Citizens'Committee which did not come in for praise or blame in the hearings before this body, Time and again the chairman of the Mayor's Committee would ask the representative of a teaching group what he or she thought of the Citisens Committee's schedules, of the single salary plan, or of the super-maximum feature. The question invariably led to a discussion based on the Committee's report. The single salary schedule was commendea as the most forward-looking step in years - it was denounced as a piece of idealistic tom-foolery that would lead to lower salaries for all teachers. The super-maximum salary was praised as a device to insure better-prepared teachers in all groups - it was arraigned as a scheme that paid teachers for credits rather thn -for service. The schedules recommended were unfair and discriminatory - they were fair and equitable. (See page 222A for typical headlines showing the diversity of reaction to the committee's plan and schedules.) In view of the fact that teachers felt at perfect liberty to express themselves at these hearings, free to criticize or to endorse, one gets a fairly accurate estimate of teacher sentiment concerning the salary plan recommended by the Citizens'Committee from the minutes of these hearings before the Mayor's Committee. These minutes reveal an almost unanimous endorsement of these schedules with occasional enthusiastic espousal of the single salary plan and the super-maximum provision of the "first step" proposed. The minutes show that the largest dissatisfied group - the elementary teachers - were not themselves -220 - unanimousi in opposing'the schedules; two of the groups representing their interests having endorsed both the schedules and the single salary plan. The teacher groups endorsing the schedules recommended by the Citizens' Committee number some fifty-three associations. One of the motivating reasons which actuated the Committee in undertaking this work was to try and raise the morale of the teaching staff, as well as to see that justice and equity were being done in the schedules of salaries. That the former of these objectives was accomplished was evidenced by the fact that for the first time in the history of the city there had been a plan of salaries around which the teachers could rally, and upon which they could base their recommendations and requests. It was a source of great satisfaction to the members of the Citisens Committee to see the attitude of the individuals who formerly appeared before the State Legislature clamoring for their rights, intimidating, and using the methods of politicians, changed to an attitude of perfect frankness and a desire to enlighten the members of the Mayor's Committee and aid them in their search for a sound and sane solution of this very vexing problem. The Qommittee has on file scores of letters from individual teachers and teachers' organizations expressing appreciation of the work done in their behalf. An even more significant evidence of teacher appreciation is seen from a summary study of selected headlines and captions appearing on page 222A, taken from New York papers that covered the hear -221 - ings before the Mayor's Salary Commission. The Committee's executives, themselves, were pleasantly surprised at the enthusiastic and general acceptance of the schedules and plan it recommended for salary adjustment. The correspondence here reproduced indicates the general tone of such teacher appreciation and endorsement: "The undersigned committee, acting for the Association of First Asst. Teachers in High and Training Schools, beg to express to you, and through you, to your committee, their deep appreciation of your untiring efforts to prepare a scientific and equitable set of salary schedules for teachers. While it would be humanly impossible to secure the unqualified approval of every teacher, you may be assured that the undersigned committee are ready to extend to you their solid support of the schedules you have recommended, and wish to be placed on record as endorsing your report. The committee are unanimous in believing that the salaries you propose are equitable, and they hope that you will be successful in securing favorable action by the city authorities in time to put the schedulesinto effect on Jan. 1, 1927." -222 - Selected Captions Showing Teaciher-React i or to C.C. Report WOMEN APPROVE TEACHERS BURY CITIZENS RATES FFERENCESON Ask Al er Tcers to PAY SCHEDULES Support Plan. JUNIOR HIGH CORPS BACKS PAY PLAN Asks Support for Citizens Committee Rates. oAnothe rrganization To Unite in Campaign, Using.t teachers' organization to its support of 01% lr t-hers' orn izato to ^of^ ( the CitCit;e~~Gizens'Report toent to the ""'": M"v-.~enth. ~ '-.- ",,oens - Justify Claims. '.o ILL SEEK ALBANY ACT it Pina of Mayor's Committ (4vo0:rie Not Samfiactry, aWind i Our - ~ Offer Ow~ Bill..a -d'. ~ count.ii tO: '6tga~6aa Joint Salary Cor 4. fXComtefuhi t. XI Pe. careful ~ Lc~e~(tS p~as~ 'a Organizations bW ech 6mething.' dfer w hi~..'of the school yre ey:'y...,'their,alfeet thaA '1 offered ites..... 'o t hbed aside. ^*^tea~ching '~-'et U,;.1'";s Salaary Con-orr 4tote,?. tested. Ther tirely -ni raise of the t u el4. O er would ap "2. T!~e "om'"' o: the- ~ "' 4 e 4 —, e, ir would make is hereby a A' 4ct:ed t C-t ~~~~annual incteda -:.,u, o O e etC ' I'- e"t? the Board. of eri'luded Ierv, -'.- z' '~. ~O.'~,-w~4X' ~ = a,c e~hb~e ts a ' "' ' was 4ddne ad' The ~uperina c4~,~'e~ eSue ot/J ' j " ve, erapsd Say Ctizens Pay ate Will. euLower Standards. O " ' t even peas. SEE FOUNDATION' ENDANGERED 4 l'1Z'" - v, % / and Want Experienced Instnctors in, FS SSSTATS ACT Lower Classes. a - i#./ r, F A N ACT"~.In an -explanatory -*' 'AT y'or'e s-. (': tie CitizenO Committe-. tede to sh* — - - ~e' - -' Cit i- O ' the.:..~_i Another organization of teachers to~. ~.. 4,_ /t t'e 'w' or_'nen., 'ja - day announced ite support of the sal'A is Ci - t.ry'0 the tee oP.ko~ ary.plan devised by the Citizens Con-.~.. _.0 ~0l fitla- rS V' _ - ' ulty o e /o. 20-e: mittee on Teachers Salaries. This is.:o~ ~'.'/,,i~0~ ~ / Ctti: _ i6 os _eh. j- zr —log z.- At:,e; t the Association of First Asistants in,t.a:..p o..t. _geacW o H~ —i.e- e '.~'o High Schools, which at a meeting fn.'oi ' 'oe. estpa, n1e6~e'o t~e^e. S - t/~r7 a'. the auditdrium of Julia Richman Hii* '..-C:.e.'w 0. et the Citizens. Com ite.~t *,0, etiy eci:; W' te ' ' -roS~- ~- ~tion of salary schedules; re - tintizn C om i e iS~~~~~clihon~~~~~ol teach e^~~~~~~~ ^\~~~~~~ ~~~~~~ot~ ot' "Therefosr, re It iee repo e he t eol e "S,':y t '..oli xo A t h - s~ -1"g t)' A h u e Associa. ' tion of First Asistantr en rth mtt i aJ. oetsa.- rt e_ tote o tiea;,_ ' T^ -nd "h-atsit Srhep ort rf ho& CAiz, -222a 1910 VALUE OF TEACHER'S PAY IN NEW PLAN One of the chief grievances expressed by the kindergarten to 6B teachers was that the citizens' plan failed to restore to the elementary teachers' group the purchasing power whic'h the men teachers in the elementary schools enjoyed in 1910. According to figures submitted by the committee, however, the average rate it has recommended for the elementary. group comes withing $19 of the figures:-calculated as necessary to restore the 1910 value of their dollar. This is a much closer approximation than in the case of the high school B*chedule. 'The average salary of all elementary teachers is at present $2,433," reads the reply of the citizens committee. "The salary proposed by the committee would increase this average to $2,639. The 'average salary paid to men elementary teachers in 1910 was $1,318. Applying the index of the purchasing power of the dollar as contained in the United States Bureau of Labor Statistics, an average salary of $2,658 would have the same purchasing power in 1926 as had the man's average salary in 19 10. The committee's schedule, therefore, lacks only $19 of giving to all elementary teachers, men and women. the purchasing power of the man's slary of 1910." High School Group. Comparing with the figures just cited the corresponding figures for senior high school teachers the committee continues: "The present average salary of high school teachers is $3,293. The schedules proposed by the committee would Increase this average to $4,229. The,verage salary of men high school teachers in 110 was' $2,143. Applying the index, an average salary of $4,322 would be required to restore the purchasing power of the man's high school teacher salary in 1910.- In summation, the schedules proposed by the citizens committee come within $19 of restoring to all elementary teachers the man's salary of 1910. They fail by $93 to restore to the senior high school teachers the man's salary of 1910." The committee takes cognizance of the fact that it h'as recommended a much larger increase for the high school teachers than for those in the elementary schools. But, it asserts, "this results from the committee's righting of the injustice done to the high school teachers in the legislation of 1919 and 1920, not from an underestimation of the very great importance ' of the elementary teachers' service." Irf proof of this the committee states: "It would have required an increase of $1,029 in the present average salary of high school teachers to restore, the - purchasing power of the man's salary of 1910; it would have required an increase of only $225 to have restored to all elementary teachers the purchasing power of the man's salary of 1910." Illegality lasue Removed. These facts and figures the committee presents to refute the complaint that its recommendations discriminate against the kindergarten to GB group in favor of those- in the higher branches of the service..It assures the teachers that it has made -"an honest effort to solve a complicated anld confusing problem with entire Impartiality in terms of the facts which are scientifically established," and it points out, moreover, that Dr. McGaughy, the director of the survey, is head of the department of elementary education at Teachers College. Regarding the contention that the proposed schedules are contrary to law, the committee declares that in spite of the fact that it has been assured that the schedules are within the law it has changed the provision for 'annual increments from three increments of $120 and six of $180 to three of $132, three of $168 and three of $180, thus removing all criticism on the ground of illegality. The committee accounts for the difference in increments between the regular -maximum and the super maximum of elementary and other teachers by pointing out that the elementary teacher may attain the super maximum by one year of training in addition to the standard qualifications of three years beyond the high school course, while the junior and' senior high school teachers must have a year of post graduate college work in order to qualify for the super maximum. I Editorials Selected from New York Papers howinq Unan mous ApprovaL of 5urveyV t the CGti3e2ns Comrmttee New Yo'f1 Thee ne w Yorr TK M;eS New.Yorl HcraldTri LUNe It Is pertinent, howeVer, to point out Miy V I5 lo 1..... -.. The that work of the kind desired by the readjustment should correspond accurately wvth Mayor has for some time been under the specific needs as determined by a complete way. As the public knows, or ought survey of the complex situation. to know, a Citizens' Committee on For that purpose the Board of Estimate resoTeachers' Salaries has been volun- lution sets up a committee of fifteen' members, tlarly conducting inquiries. Is' sole tarily conducting inquiries. Its sole five to be appointed by the President of the Board aim has been to. ascertain the facts. of Education and. ten by the Mayor. The cornIf their proper interpretation calls for mittee is to make "a thorough and scientific study a higher level o pay or New York of the entire question of teachers' salaries in the a higher level of pay for New York teachers, then that conclusion willbe City of New York." That is a sensible program, drawn. The belief is that the people and it is precisely the one that is being carried of thscty are onvinced that the out by the Citizens' Committee on Teachers Salytem t publi euonidaries organized last winter on the initiative of system of public egucatton Is sound, the United Parents' Associations. 'The executive and that they are 'getting their members of that large and representative commoney's worth, they will be prepared e. W YO r E P. bodies to pay the larger sums that may be w Yor E t bdi necessary. The Citizens' Committee. I q 95 'ith has brought together for its investlga- I/xHEN the Committee of Fifteen me contlon several experts, not only in edu- v V which is to make a study of teach- 'ri ll artlally cation but in economics and statistics ers' salaries is appointed in accordance, status One great purpose has been accurately with the resolution of the Board of Esti- i ranks to relate teachers' salaries to the In- mate it should ask itself just what its living, creased cost of living. Thisis funda- task is. To start at the beginning and ties for mental to th^A whole inquiry. What investigate the whole question of what he conNew 1 E C teachers receive and what they ought to of the Ncw Yor L V. 5U N receive will be to duplicate work which lMa.y I, I q. is already well advanced. 11 have I_ y Jl__ 1q_# J. The Citizens Committee which was art hy The expense of such an investiga- organized some months ago to collect - tion would be justified if it were facts bearing on teachers' salaries has Lmittee, necessary. The question is'whe.h ^ ' - -. + o,,-r, f n.npei. 1Y aY. ir is necessary: The. Citizens i e w 1Or K eN I NQ Wo mittee on Teachers Salaries has bee May a n, 1 9I b on the same job for nmonths arid h Under the circunstances, the decision of city compiled a vast amount of' inform and school officials to combine in creating a commistili preparatory to a final jlepo sion to make a diligent search for the solution of this The personnel of the committ perplexing problem is a step in the right direction. which includes ROBERT E. Siox I Fortunately, a committee of citizens has been at JoHn H. Fr.LF, Mrs. DMosKOWir work along the samP lines, gatherinx information PERCY S. STRAU.S LEE K. FRANKI whi e-Senator Lo(KTo)on and RAYIO e' Yor Mor N q W or?3rooKylN E^qe-MqS M Y l, n.^tb Iorol ym bi- UM l TEACHERS' SALARIES ' Whatever the Governor does about The Board of Estimate committee intrusted with;he bills, the resolution of the Board the duty of investigating teachers' salaries is forft Estimate must not be allowed to tunate in having available for its information the Let as a mere shelving of this prob- cGaughy preliminary report and the other mate. lein. A committee of the United rial already amassed and now being sought by Parents Assoctioll proposes a sur the Citizens' Committee on Teachers' Salaries. -Parents Associati-. prp, 1a s-. Whether the city can afford to pay the rates I -222c - APPENEDIX A In this Appendix will be found the statistical tables which sunmarize many of the findings of the Citizens' Committee on Teachers Salaries. They are grouped here for purposes of easy reference and to make it possible to read the text of the report as a continuous story. References to most of these tables and some explanations of them will be found in Chapter III - "The Facts Discovered". It is not possible, even in these detailed tables, to report more than a small part of the great mass of data secured by the Committee. The data not here reported are on file, and available for reference, at the office of the Conmittee's Director, Professor J.R. McGaughy, Teachers College, Columbia University. TABLE III CHANGES IN COST OF LIVING IN NEW YORK CITY FROM DECEKBER 1914 to DECMBEB 1925. Condensed from Table 2, pap 68 of the Monthly Labor Review, Vol. XXII, No. 2, Februeay 1926 Per Cent of increase from Deoember, 1914 to — Item of Dec. Dec. Dec. Dec. Dec. Dec. Dec. Dec. Dec. Dec. Dec. Expenditure 1915 1916 1917 1918 1919 1920 1921 1922 1923 1924 1925 Food 1.3 16.3 55.3 82.6 91.0 73.5 51.8 49.5 52,0 50.0 62.6 Clothing 4.8 22.3 54.2 131.3 219.7 201.8 117.8 98.3 102.7 97.7 95.9 Housing 1.1 1.1 2.6 6.5 23.4 38,1 53.7 56.7 62.4 67.1 69.5 Fuel and Light 1.1 11.0 19.9 45.5 50.6 87.5 90.7 95.7 94.2 93.3 126.0 House-fmiurshing Goods 8.4 27.6 56,5 126.5 172,9 185.9 132.0 121.6 131.5 119.4 110.4 Miscellaneous 2.0 14.9 447 70.0 95.8 116.3 116.9 111.6 113.5 116.7 118.2 All Items.... 2.0 14.9 44.7 77.3 103.8 101.4 79.3 74.2 77.3 76.5 83.2 TABLE IV INOl NDMBRS SHOWING HE TID IN THE RETAIL COST OF FOOD -IN THE UNITEED STATES, B ]Y YARS, 1890 TO 1925' This Table is Table 7 of the Monthly Labor Review, Page 16 of Vol. mII, No. 2, February - 1926. (Average for year 1913 = 100) Year 1890 1891 1892 1893 1894 1895 1896 1897 1898 1899 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 1924 1925 Relative Price 69.6 70.6 69.3 71.0 67.8 66.5 64.9 65,4 67.1 67.7 68.7 71.5 75.4 75,0 76.0 76,4 18.7 82.0 84.5 88.7 93.0 92.0 97.6 100.0 102.4 101,3 113.7 146.4 168.3 185.9 203.4 153.3 141.6 146.2 145.9 157.4 *The number of articles included in the index number for each year has not been the same throughout the period, but a sufficient number have been used fairly to represent food as a whole. From 1890 to 1907, 30 articles were used; from 1907 to 1913, 15 articles; from 1913 to 1920, 22 articles; from 1921, 43 articles. The relatives for the period have been so computed as to be comparable with each other. -225- " TALE T. RELAIVE PURCH&SING POWERE OF TEACEDIS'f SALARIEaS 0F 1910 AND 1925 MlN TEACREE 0? N~EW YORK CITY ~~mntary ~ 1910 195Average Sal- Index Wmi.and Jmunv.. Average TeragAve aries on ber with ior High of Salary o'f Salary 1910 Basis 1910 as 100 School Teach- Teachera era 1925 1925 K to 63 386 #1318 409, $1816 901 68?A to 9B 623 1850 292 3021 1498 81 Assistauts to 22 2400 71 3575 1772 74 Principals Principals 220 3403 236 4718 2539 69 Teacher 5 1761 2 1750 867 49 Clerks Teachers of Atypical 2 1950 6 2121 1051 54 Children Junior High 0 - 258 2920 1447 7 School Grand Total 1238' V1978 1274 *2953 $1464 74 High School Principals 18 05000 31 #6419 $3182 64 Clerical & Laboratory 10 1055 58 2066 1024 97 Assistants All Teachers 611 2143 1738 3384 1677 78 Grand Total 639 #2206 31827 p3393 p1682 76 -226 - TABLE n. RE'-,LATIVE PURCHASING POVER OF TEACHERSt SALAkRIES OF 1910 AND 1925 WOMEN TEACHERS OF NEW YORK CITY Elementa&rY 1910 1925 Average Sal- Index Numand Jun.. Number Average Number AVeraige aeso ber with ior High of Sualary of Salary 1910 Basis 1910 as 100 School Teach- Teachers or. 1925 1925 K to 63 10982 f 913 14050 p2451, 4Wl2l 133 7A to 93 1723 1288 2369 3145 1559 121 Assistants to Principal 386 1600 509 3585 1777 111 Principals 221 2338 281 4356 2159 92 Teacher ~11 1280 728 1803 894 70 Clerks Teachwes of Atypical 128 1104, 761 3089 1531 139 Children Jinior High School 0 - 1621 3090 1532? Grand Total 13461 $1006 20299 $2638 $130 130 NiI& School Principals 0 -3 #6500 #3222 Clerical and 80.5 143 2344 1162 138 Laboratory 13 Assistants All Teach- 676 1660 2326 3226 1599 96 oer Grand Total 689;1644 2472 $3179 $1576 96 -227 - TABLE VI I. RELATIV PUECH&SING POWER OF TEACHERS" SAIARIES OF'1910 AIM 1925 ME AND WOMEN TEACHERS OF NEW YORK CITY zElementary 1910 1925 Average Sal- Index Numaand Jum.- Nvis or Average om~r Average aries on ber wi th ior High of salary of Salary 1910 Basis 1910 as 100 School Teach-. Teachere 1925 1925 K to 63 11348 $926 14439 $24.33 $1206 130 7k to 9B 2346 1438 2661 3131 1552 108 Assistants to Principal 408 1643 580 3584 1777 108 Principals 441 2869 517 4521 2241 78.Teacher Clerks 16 1430 730 1803 894 62 Teachers of Atypical Children 1 130 1117 767 1 3081 1527 137 Jimior HighSchool 0 - 1879 3067 1520 7 Grand Total 14689 $1088 21573 $2657 $1317 121 HIgh _School Principals 18 #5000 34 #6426 #3185 64 Clerical and Laboratory 23 937 201 2263 1122 120 Assistants All Teachers 1287 1889 4064 3293 1632 8 6 Grand Total 1328 $1915 4299 #3270 $1621 85 -1228 - TABLE VI II INDEX FOR 1925 SALARIES BASED ON THE PURCHASING POWE OF THE 1900 DOLLAR Elementary aidi Junior Righ )LOen' W oments1 Men's and School Salaries Salaries Women's ____ ____ ____ ____ ___ ____ ____ _ __ ____ ____ ___ Salaries K to 6B 50 98 96 7A to 93 60 89 80 Assistants to Principal 55 82 80 Principals 51 68 58 Teacher Clerks 36 52 46 Teachers of Atypical 40 103 101 Children Junior High School? Grand Total 55 96 89 High school Principals 47 47 ~ ---- --- ----------— ~ — Clerical and Laboratory 72 102 89 Assistants All Teachers 58 71 64 Grand Total 56 71 63 -W229-0 TABLE IX FACTS CONCEI ING SALARIES IN NEW YORK CITY AND IN SIX OTIER AMERICAN CITIES Reported Separately for len and Women of Each Group April - 1926 Phila Cleve- Detroit St. Chicago Kansas New York Sum of delphia land Louis City City 6 Other TEACHERS Cities Kindergarten No. of Men 0 0 0 0 0 0 0 0 oe of Men O 0 0 O O O O Av. Sal. of Men - - - - - Av. Sal. of tomen 836 2040 -1899 177 228 1526 2527 Grades 1 - 6 No. of Men 249 9 83 83 80 409 507' No. of Women 4450 2s83 -91 1297 515 987 s132 1665 %: 7ofs "e 5 '?: 3: AT. Sal. of Men 1501 2108 2191 1910 1818 - Av. Sal. of Women 1772 1955 1872 1913 222 1714 2445 7 - 9th Grades Junior High School No. of Men 222 206 93 28 159 34 550 742 No. of Women 548 815 320' 54 1428 111 3990 3276 ' 'of l en 29 20 23 4 10 3 12 18 Av. Sal.; ofr en 2299 23s68 2 04 229 os090 29'74 - ATiv.. oal f vomen 2292 0 217 2190 2423 1974 3123 - Senior High School No. of Men 595 291 286 214 525 113 1758 2024 os0. of Women 648 360 512 239 767 211 M226 2737 of wen.4 46 86 4 7. 41 35 43 43 AL,. sal. o2 5en3 30720 aS7 "'906 820"8 466 384 2844 Iv. Sal. of Women 3033 8 42 2734 3262 149 3226 Atypical No. of Men 15 21 28- 6 0 6 70* To. of Vomen 403 294 219 115 20 761 795 % o f i cn4 7 11? 21 0 1 7 Av. Sal. of Men 1980 2.5134 E3 - 2121 - iv. all.of Women 2160 22.0 1To3 2201 162 1836 3089 ~~~~~~T~. o 9... * St, Louis is omitted. TABLE.x(Con't) FACTS COCERNISG SALARIES IN NIw TORK CITY AID IN SIX OTHER AMERICAN CITIES * Phila Cleoe- Detroit St. Chicago Kansas Ne York Su of delphia land Louis City City 6 Other PRINCIPAMLS Cities Elmentary Principal No. of )en 95 1 53 66 22 28 26 o. ooen. -16 10.148- 46 28. iTa. f.. o? MMn '570 S". r 4,6 ' '...5 48? 71 Tv Sl. orVo-n soe 6i3087 81 4i 1 87 45i - Junior Hi&i School Principals No. of en9 8 9 2 4 ** o. ofTromen 5- 1- 0 O 4 0 ~ ofM tn 64 89 100 100 0 100 - Av.:, or Ma n F -4;06- 4 4 493 400.50 4000 T. al. 0oom r 41w i 59 1 4950 - Senior High School Principals No. of Mn 9. 1s Ilo. of Viom en S -6 AI. Ms1. of Women o:: — Trainin School Principals No. of Men 2 o., of Tomen I AoT. s^ or, Womn 4 VT. Sal. of Vomen 4o 00 11 6-T _TM 6 -oo NWRB 22 50W mu0 5 -0 31 -6600 1 10 2 65O no~0 9wCK ** Junior High School omitted. -251 - TABUi IZ f ontoiflad) FACTS CONCERIING SALARIES IS NEW YORK CITY AND IN SIX OTHIR AXKRICAL CITIES --- - Phila- Cleve- Detroit St. Chicago Kansas delphia land louis City Hew York Sum of City 6 other i tiPs AINISTRATION OFFICERS, - Superintendent of Schools No. of Men 1 1 1 1 1 1 1 Salary 12000 12000 125o00 10o0n 10o0 0 -800o0 0 -- Assoc. Supt. Schools No. of Men 4 4 4 5 4 2 7 No. of Women 0 0 0 1 1. 0 1 % of en......100 - 100 100 83 o 80 150 8s AT. Sal. of Men 700. 6800 6225 790 9 10000 4900 8250 A. Sa. of Women - 0- 800 000 - 8 -- District Superintendents No. of Men 9 3 3 2 9 3 25 No of Women 1 0 2- 0 3 4 4 %of aen 9 16'0 60 o 10 75 4- 5 85 ATv Sal. of Men 53889 250 3933 5750 6500 4200 66639,v. Sal. of Women 52 50 750 - 65 - 600 Directors of Bureaus, etc. No. of Men 10 4 6 2 5 No. of Women 1 L2 6 I- 1 of Men V7 80 7 - 100 83 AVS. Sa r Men 5325 2517 4450 5980"-5 -i. S. of Tomen 5S 5'600 - Supervisors No. of Men 43 47 12 5 6 No. of omen 77 - 6 2 3 17, ofMen 36 46 8 - 683 26 -AYv. Sal. of Men 2E67 8 594 2765 0606 g 321 Av. Sal. of Women 269 2902 S3000 4667 '271 Attendance Officers No. of Men 22 26 9 4 254 tJo. of Wo menn '62 229 10 - 74 oMen 26 4. 47 457 ' 78 Av. Sal. of Men 511 182 1956 -140-0 24 59. Ave. Sal. of Women 1456 1960 1267 — 2294 EE1 " *.91..... -232 - TABLE X. THE PROFESSIONLL PEPARATION OF NEW TOI CIT TEACHERS. Sunuaary of Facts Reported by 11081 Teachers, and Supervisory and Administrative Officers of the. WAw Tn-Ir fr.lv t'Pn'hl P i Sfthool Average Number of Tears of Training: Percent In In In Having More Beyond Teacher College College Than Four Number High Training or or Years Trainof School Institu- University University ing Beyond Reports Gradva- tions (Under- (Post- High School Groaups. BReceived tion A. Kindergarten Women 354 2.2 Men 0 - B. Grades 1 to 6 Women 3856 2.5 Men 207 4.5 C. Elementary Unclassified Women 358 2.9 Men 96 5.8 D. Assistant Principals, Elementary Women 209 4.6 Men 52 6.1 E. Principals, Elementary Women 86 5.6 Men 108 6.1 F. Ungraded Classes Women 250 3.5 Men 9 4,4 G. Junior High, Grades 7,8 and 9. Women 1235 354 Men 371 4.6 H. Assistant Principals, Junior High Women 2 1.8 Men 4 4.8 I. Principals, Junior High School Women 4 6.1 Men 7 8.8 J. First Assist's. Heads of Dept's. Women 55 5.2 Men 107 6,4 K.Assistants, Traditional SubJects /Women 755 5.0 Men 683 5,7.Graduate) craduate _ Graduation. 2.0 0.0 0.0 2.0 0,0 0.0 0,0 4.0 0.5 2.0 0.5 0.0 1.0 2.7 0.0 2.0 1.0 2.0 4.0 530 1.0 0.0 4.0 0.2 1.6 0.8 1.5 2.0 1.0 2.0 1.0 School 1.0 1.0 2.0 0.0 Senior H.S. 2.0 0,0 0.0 0.0 0.9 0.0 3.6 0.1 0.8 0.0 3.0 0.2 0.0 0.6 4.0 0.0 0.0 1.6 4.0 3.6 4.0 0.9 4.0 1.6 4.0 0.9 4.0 1.3 16 19 65 28 45 57 84 79 86 40 75 37 62 0 100 100 100 76 94 79 90 -253 - ABL X (Con't) TEI PROFSSIOXAL PIPARATION OF Ns YOXB C ITY TEACHERS Averae e Number of Tears of Number of Reports Grouns Received Beyond High School sraduation In Teacher Training Institutions In College or University (UnderGraduate) L. Assistants, Modern Subjects Women 518 4.4 Men 419 3.9 2.0 0.0 2*5 2.3 Training: In College or University (PostGraduate) 0.0 0.0 0.6 0.7 0.0 0.0 Percent Having tore Than Four Years Training Beyond High School Graduation X. Assistants, Unclassified Women 104 Men 30 4.9 1.0 4.0 5.1 0.0 4.0 N. Clerical and Laboratory Assistants Women 40 1.5 Men 22 4.0 0. Assistant Principals, Senior H.S. Women 6 4.2 Men 27 5.9 P. Principals, Senior High School Women 1 5.6 Men 26 6.7 Q. District Supervisors Women 1 9.0 Men 3 3.6 R. District Superintendents Women - - Men 6 7.1 0.0 1.0 0.0 4.0 1.0 2.6 0.0 0.0 4.0 1.6 1.0 4.0 0.6 0.0 4.0 2.5 4.0 3.0 - 4.0 2.6 0.0 57 49 76 63 29 47 60 96 100 100 100 0 100 9 33 64 25 33 66 9 7 S. Teachers Clerks Women 282 Men 4 T. Librarians Women 27 Men 4 U. Substitute Teachers Women 355 Men 98 V. Attendance Officers Vomen 64 Men 222 2.0 3.0 2.5 0.0 0.0 0.0 0.0 4.0 0.0 0.7 3.5 4.4 0.0 4.0 2.6 2.0 0.6 0.5 0.4 5.2 2.0 1.1 0.0 4.5 0.0 4.0 0.5 0.6 0.0 0.1 0.0 0.5 0.0 0,4 0.0 -254 - TA3IB X (Con't) TEI PROFESSIONAL WA TION OF IN YOUK CITY TILCEES Average Beyond High School Graduation N-um~er of Reports Received Niaber of Years of In In T2eacher College Training or Institu.- University tions (UnderGraduate) Training: In College or University (PostGraduate) Percent Hiiving More Than Four Years Trainin Beyond High-school Graduation Groups All Women, Grand Total* All Married Women All Umiarried Women Living at Hone All Unmarried Women Living away from Home All Men, Grand Total5 All Married Men All Unmarried Men Living at Hone All Unmvarried Iten Living away from Home 8540 1499 4202 2333 2505 1700 539 171 3.0. 2.*0 2.9 2.0 2.9 2.0 3.5 2.0 4.9 0.0 5.0 0.0 4.7 0.0 5.1 0.0I 1.6 0.0 33 0.4 0.0 33 0.5 0.0O 29 0.9 0.0O 41 4.0 0.6 68 4.0 0.6 67 4.60 0.5 L 69 4.0 0.7 70 *506 Women and 95 Men did not report whether they were married or unmarried. -235 - TABLE XI AOtT OF TBACHING ERPEBIECE OF HN TOBE CITY TRACHEBS Sumary of Faoct Beported by 11081 Teachers and Supervisors and Administrative Officers of the New York City Schools y - 1926 Total Years of Teachi Service Average R e of iddle 50 Percnt Total K- 6B Women 4569 brried 82 Unmarried Living at HomeR478 Unmarried Living Away from Home 979 Not Stated* 289 Men 303 Married 118 Unmarried Living at Home 157 Unmarried LiTing Away from Home 17 lot Stated* 11 JUNIOR HIGH SCHOOL AND tADES 7 - 9 Women 1235 arried 167 Unmarried Living at Home 579 Unmarried Living Away from Home 419 Not Stated* 80 Men 371 rirried 265 Unmarried Living at Home 69 Unm&rried Living Away from Home 25 Not Stated* 12 SESOIR HIGH SCHOOL Women 1357 ll5ried 294 Unmarried Living at Home 492 Unmarried Living Away from Home 508 Not Stated* 63 Men 1132 ~arried 816 Unmarried Living At Home 186 Unmarried Living Away from Home 92 Not Stated* 58 9.7 12.7 6.6 18.9 9.6 4.3 11.0 2.8 4.0 4.8 19.1 20.2 15.1 23.8 19.8 9.3 11.2 4.6 8.5 8.0 16.0 15.7 11.1 20.1 17.0 15.7.1S.? 15.4 6.7 14.1 15.0 4,t 7.8 3.2 10.9 4.1 2.5 4.7 2.1 2.5 35. 11.5 13.1 9.2 16.2 12.53 4.6 5.8 2.4 4,1 4.5 8.9 10.3 5.9 135. 9.3 7.4 9.S 4.5 6.5 10.9 to 19.0 to 19.9 to 13.0 to 26.9 to 19.8 to 9.7 to 19.3 to 4.6 to 35.0 to 8.0 to 26.9 to 25.9 to 22.9 to 30.2 to 28.2 to 17.2 to 18.9 to 8.9 to 20.5 to 15.0 Percent Who Never Taught Outside of lew York City 87.3 85.8 94.6 68.5 91.9 88.6 81.0 94.9 81.9 90.0 84.7 87.3 92.1 73.0 87.0 77.9 74.3 95.7 56.0 100.0 to 23.7 to 24.3 to 18.7 to 26.1 to 25.3 to 22.Z to 24.1 to 10.8 to 21.3 to 23.3 57.2 64.5 72.0 38.6 70.0 65.9 63.3 82.2 56.0 64.9 * These persons reported their years of teaching service but not their economic status. TABLBXI (Con't) AMOUNT OF TEACHING EPlRICE OF HNET YOK CITY TEACHERS Percent Who Never Taught Outside of New York Citg T otal ears of Teaching Service oPn*.I TrAVr — & ftU M i spare-an 3ACHERS OF ATYPICAL PUPILS Vomen 250 -arried 46 Unmarried Living at Home 95 Urnarried Living Away from Home 98 Not Statede 13 _. __ -0- I....I.....W_ __ -- _ 19.1 20.8 16.3 21.8 17.5. 6.7 26.5 12.0 to 13.2 to 10.1 to 15.4 to 12.1 to 3.4 to 26.0 25.8 22.8.25.8 27.2 9.7 e. 69.9 72.7 86.0 72.7 61.5 55.6 553. 50.0 100.0 len aTrried Urmarried Liviig at Home Umarried Living Awy from Home W~4. 4-4 *sti 9 5 4 2.. _ All Women Teachers 7308 12.9 6.2 to 22.2 80.9 Mairried -- 1509 14.3 8.7 to 22.4 80.7 Unmarried Living at HomeS602 8.6 4.2 to 16.5 90.9 Uwarried Living Away from Home 1978 20.5 12.6 to 27.6 61.2 Not Stated* 419 13.5 5.4 to 23.1 87.0 All len Teachers 1791 11.2 3.5 to 19.7 72.1 KAMrrM'ed' — 1187 14.2 7.7 to 22.6 67.4 Umarried Living at Home 412 4.6 2.6 to 8.2 88.9 Umrried Living Aay from Home 134 11.9 4.9 to 21.1 59.7 Not Stated5 58 12.3 5.2 to 18.6 76.$ *Thee persons reported their years of teaching service but not their economic status -25S TABLE XII DX NI~TS OF CERTAIN GROUJPS OF WIfE TEACHERS CLASSIFIED AS TO ECO1NOMIC STATUS Based on 1320 Married Women, 3641 Unmarried Women Living at Home,, and 20005 Women Living Away from Home - A Total of 6966'Women Teachers New 'fork City - May, 1926 Percent Having Each Number of DeNumber pendents Report-. or Tiir or 4~ or or' more more more more more GRADES K 6 Wiried WVomen 823 60 29 11 4 2 Unmarried Women Living at Home 2478 70 36 11 3 1 Women Living Away from Home 979 73 38 10 2 0 Total..00*06646 4280 69.35 11 s 1 JUNIQR HIGH SCHOOL AND GRADES 7 -09 Married Women *]137 70 35 8 1 0 Unmarried Women Living at Home 579 73 37 8 1 1 Women Living Away from H ome 419 74 3? 11 2 1 Total.1.0000**** 155 73 37 9 1 1 SENIOR HIGH SCHOOL Married Wommi 294 81 56 29 10 3 Unmarried Women Living at Rome 491 68 35 9 2 0 Women Living A wa from Home 509 70 32 8 1 0 Total.~~~~~1294 72 38 13 3 1 TEACHERS OF AtYPICAL CHILDT warried Women 46 77 41 11- 0 0 Unmarried Women Living at Home 93 U 0 1 5 i Women Living Away from Home 98 75 39 18 3 1 Total.~~~~~237 78 43. 14 3 1 d -238.. TABLE XIII RELATIONSHIP OF XEARS OF TEACHING SERVICE TO NUWAERS OF DEPENDENS Based on 6966 Women and 1754 Men Teachers of Elemnary an unior and Senor High -Schools- in New YoRk City My-1926 Percent Having Each Number of De-~ Years Number pendents of Report- TTor 2 or 3 O T 4 T r -5 or __________Service ing more more Imore more more Married Men 0 -9 359 97 74 I 36 16 6 10 -25 610 98 841 57 27 10 More than 25 233 95 78 47 21 7 Total 1202 97 80 49 23 8 Married vWomen. 0 -9 416 50 24 7 2 1 10 -25 697 74 43 17 5 *2 More than 25 207 75 42 21 10 4 Total 1320 66 36 15 5 2 Tznmarried Me Living at HomeO0- 9 355 77 51 21 8 2 10 -25 74 80 38 16 3 2 More than 25 7 67 50 33 0 0 Total 416 77 49 20 7 2 Unmarried Women Liv-, ing at Homeo0- 9 2112 67 35 11 -4 1 10 -25 1221 77 38 9 2 0 More than 25 309 72 35 8 1 0 Total 3642 71 36 10 3 1 TABLz nii (continued) ITSND OF CERTAIN'GROUPS OF WOMEN TEACHRRS CLLSSIFIED AS TO ECONOMIC STATUS Percent Having Neach Number of DeYearn Number 2 rpendents o of Report- 1 or 3~ or 4or Service more more more more more nLiving Away from Rome 0 -9 59 71 39 12 10 2 10 -25 57 73 47 18 4 2 More than 25 20 80 50 25 10 0 otal 136 73 44 17 7 2 omnLiving Away from Rome 0 -9 362 74 37 12 2 1 10 -25 1046 74 37 9 1 0 More than 25 596 70 35 11 2 1 tal 2004 73 36 10 2 1 All Men Teachers0 -9 753 86 61 27 12 4 Z0- 25 741 94 77 50 23 9 More than 25 260 93 75 45 19 6 Total 1754 91 70 40 18 6 1l Women Teach-. ere ' 0-9 2890 65 34 11 3 1 10 -25 2964 75 39 11 3 1 M~ore than 25 1112 71 36 12 3 1 tal 6966 70 36 11 3 1 -240 - TABLE xrf RELATIONSHIP BEWEEK NUMBER OF CHI3BS AMD NUMBEI OF DEPIDUS OF MARRIED ME TLEACGRS Based on 1155 Married Men Teaching in Regular Day Schools in New York City May - 1926 Lumber ercent of Married len of Having Dependents in Children ddition to Wife and 0 1 2 3 4 5 6.7+ Total Children 23 1167 71 23 6 290 54.5 1 8 4 24 64 14 34 22.0 2 2 8 91 2ib0l 50 10 1 1 291 21.3 3 2 1 11 7 91 16 4 132 15.2 4 5 2 -6 6 51 6 611.8 5 1 3 6 14 1 25 4.0 6 5 0.0 7 3 0.0 8 1 0.0 9 1 0.0 TOTAL 35 196 357 300 168 60 25 12 1153 23.2 -241 - TABLE XV TEACHERS' EARNINGS FROM ALL SOURCES Based on Reports from 1820 Men and 7158 Women Teachers in the Regular Day Schools of New York City, May, 1926 Average Total Number EarnReport- ings ing from all sources zarnings rrom blarnings rrom Outside Sources Outside Sources during Regular During Summer School Year Vacation Per cent Average Per cent Average thus Em- for those thus Em- for those ployed with Out- ployed with Outside earn- side ings Earnings Grades K - 6B Women arried Unmarried Living at.hone Unmarried Living away from home Not Stated* Total Men arr ied Unmarried Living at home Unmarried Living away from home Not Stated* Total 792 $2514 2593 2227 951 2703 248 2457 4584 2595 4 $318 5 236 8 293 1 480 5 270 1 2 3 1 2 $ 96 158 130 30 150 125 $2496 156 1882 17 2662 9 1861 307 2175 21 $553 22 309 6 450 0 41 20 415 7 $217 10 180 6 300 11 150 9 197 JUNION HIGH SCHOOL AND GRADES 7 - 9 Women Married 155 $5053 Unmarried Living at home 570 2940 Unmarried Living away from home 404 3126 Not Stated* 72 3026 Total 1201 3022 5 $244 5 255 6 274 4 127 5 254 0 - 1 *1094 1 353 0 - 1 724 Men - arried 272 $5420 32 $682 12 $753 Unmarried Living at. home 69 2853 33 695 10 269 Unniarried Living away from home 25 3010 16 475 12 142 Not Stated* 12 2808 17 800 8 350 Total 378 3270 31 680 11 622 *These persons reported their earnings but did not report their economic status. -242 - TABLE XV - Contiumed TEAHIR' EhBNINGS FROM ALL SO1URCES Average Total Nvpiber EarnReport.- ings ing from all.Sources ErIngs from Outside Sources During Regular school Year. per cent Average thus Em.- for those ployed with Outaide EarnLings Earni-Ige -from- Outside Sources Dur ing Sumeer Vacation Per cenrt Average thus Em-. for those ployed with Outside Earnings8 SUIOR HIGH SCHOOL Women Married 283 Unmarried Living at home 4,88 Unma~rried Living away from home 504 -Not Stated* 58 Total 1333 Nen Married 811 Unmarried Living at home 186 Unwrried Living away fr om home 92 Not Stated* 37 Total 1126 TEACHERS OF ATYPICAL CHILDE Women NW~ried 45 Unmarried Living at home 90 Unmrried Living away from hoe 95 Not Stated* 12 Total 240 $3686 3007 3410 3207 3312 43974 2810 3388 3609 3722 25 $843 9 426 11 379 3 188 13 583 33 1i767 20 535 26 650 8 635 29 751 2 f 70 4 313 11 187 0 6 213 0 0 0 - 0 - 0 - 7 $495.4 206 3 232 2 110 4 321 12 8 12 11 12 $~560 532 305 343.506 men ~Married Unmarried Li'ving at home Unmarried Living away from home Not Stated*, total 3 4 0 9 $3027 2986 3113 2950 3042;,2483 2050 2150 2206 2 $250 3 157 3 265 0 3 216 0 - 0 - 0 0 - 0 — *These persons reported their earnings but did not report their eooi tts -243 - eeonomic status, TABL XVI THE EEAIO5SEIP OF XhEINGS OF MARRIED MN TZACHBES TO NUIMR OF CHILDREN IN FAMILY Based on Reports from 1208 Married Men Teaching In Regular Day Schools in New York City may, 1926 Average Earning from Eannsfrom Total Outside Sources Outside Sources Number Number Earn&- During Regular Dur ing Sumaer of of ings school Year Vacation Child- Teachers from all Pe — l 'vrg e etAerae" ren Reporting. Sources thus Em- for those thus Em- for tho se ployed with Out- ployed with outsi4e earn side -img Earnings Grades K - 63 0 62 $2137 21 $479 1 33 2820 24, 703 2 12 2867 17 375 3 5 3430 60 591 4 2 3250 0 5 0 -0 6 1 2000 0 7 1 2873 0 -- Blank* 9 2383 0 -- - 125 2496 21 553 and Grades 7 - 9 Tota3 Junior High school 10 $266 3 80 8 60 20 222 0 0 0 0 0 -- 7 217 10 $363 1s 500 4 1600 20 788 21 467 25 2725 0 -- 0 -- 100 336.13 200 12 753 0 63' $2826 '22 1 80 3371 34 2.68 3660 355 3 30 3630 50. 4 14 4029 14 5 8 4263 38 6 0 ---- 0 7 0 ---- 0 8 1 3850 100 Blank* 8 3812 13 - 272 3420 32 $844 510. 653 613 1820 367 175 4000 682 Tota~l Senior High School 0 195 $3468 31 $ 619 10 $572 1 247 3838 29 683 13 425 2 213 4276 39 692 14 676 3 98 4468 37 1316 14 299 4 35 4407 34 8(86 17 1264 5 17 4073 12 845 6 525 6 4 3375 25 650 0 -7 2 4900 0 -- 0 8 0 -0 - -0 9 1 4250~ 100 800 0 Blank* 5 4370 0 — 0 - Total - 811 3974, 33 767 12 560 *These Persons reported that they were married men but did not report the number of children in. their families. -244 - TABLEZYZ RENTS PAID AND SUB-REOTS RECEIM~ BY NM YORK CITY TAHR based on Report of 4073l Teachers of Regular Bay Schools M ay - 1926 Teacher. Who Do Not Sub-Bent Rooms NOWbe Average Report- Rna lugip Paid 730 $ 910 868 691 108 654 16 - E TAYTEACHERS WomzA, Married Women Living Away from Homes Men,, Married Men,- Living Away from Home TEACHR Or CRADE 7 - 9 AND OF JINIOR -HIGH SCHOOL Women., Married Women Living Away from Home Msnm, Married Meni, Living Away from Home SI9OR HIGH SCHOOL Women, Married Women Living Away from Home Men,, Married. Men Living Away from Home TECESOF ATYPICAL CHILDRENF Women, MarriedWomen Living Away from Home Men, Marriled Men Living Away from Home Teachers Who Do Sub-Rent, Rooms Number Average Average Report- Rental -Sub-Rental lug Paid Received 40 $1047 ~420 72 947 356 4 900 225 14 1100 429 44 10153 406 22 1100 350 2 1000 475 23 1450 450 74 1073 376 81 1369 448 5 1000 575 126 Z57 236 22 258 417 724 86 945 778 881 585 948 757 989 752 39 969 '79 800 3 2 2 - 4 1300 13 960 650, 360 T~AIBL XVIII ROT~S PAID AND SMB-RENTS RECEIVED BY MUN AND VUEN IECEEis Based on 114 Men anid 285 Women Classified as to Economic Status may - 1926 Average Range of Middle 50 Percent 205 MARRIED WOME Rentals Paid Sumb-rentals Received Difference 80 VOMEN LIVING AWAY FROM HOME Rentals Paid Sub-rentals ReceiveO Difference 285 ALL WOMEN TEACHERS Rentals Paid Sub-rentals Received Difference 107 MARRIED MEN Rentals Paid Sub-rentals Received Difference 7 MEN LIVING AWAY FROM HOME Rentals Paid Sub-rentals Received Difference 114 ALL MEN TEACHERS, Rentals Paid Sub-rentals Received Difference * 992 * 789 to #1323 380 231 to 601 612 558 to 722 1100 439 661 1021 396 625 1295 412 883 1000.550 450 1279 418 861 926 to0 1675 270 to 639 656 to 1036 822 to 1402 241 to 614 581 to 788 1025 to 1689 256 to 659 769 to 1030 575 to 1538 281 to 725 294 to 813 1008 to 1676 258 to 663 750 to 1013 -246 - TABLE X rINTALS OF DIFF3 ENT TYPES OF HOUSING ACCOIIAMTIOXS Based on Facts by 1171 Married Men Teachers Way - 1926 Number IAnal Bentals Paid ALL MfARIED W Reporting Aiereage lagR of Nidle 50 Percenit Furnished, Heated, Janitor Service 31 943 $697 to $1213 Unfurnished, Heated, Jan. SerT. 430 869 737 to 1024 Unfurn., Not Heated, No Jan. Serv. 396 1113 887 to 1551 Furnised, Heated, No Janitor Serr. 5 650 550 to 800 Furnished, No Heat. No Jan. Serv. 1 1200 - All Others 310 1010 819 to 1247 Total 1171 975 785 to 1214 -247 - TABLE XX AV ERGE ANJUAL RENTALS PAID BY SEVRAL SALARY GROUPS May -1926 Salary Group Married Those Living Those Living Teachers at Home$, h~ot Away from _____________________Marr ied. Home. Under $ 750 #859 $348 $461 $750 - 1499 754 384 538 1500 - 1999 800 396 566 2000 - 2499 821 510 670 2500 - 2999 911 564 720 3000 - 3499 925 684 778 3500 - 3999 1015 750 886 4000 - 4999 1115 792 1019 5000 - 5999 1281 720 1228 6000 - 7999 1441 672 877 8000 - and over 1691 510 Total $4974 $522 $757 -2480 - TABLE XX MONTHLY EXPENSE FOR MEALS Based on 5658 Women and 1590 Men Teachers in the Regular Bay Schools of lew York City -ay - 1926 Number ReportiDn Monthly Expense for Meals Average ange or kiddf e g Percent GRADES K - 6B Women Married Unmarried Living at Home Unmarried Living Away from Home Total.............. 714 85 1835 43 870 75 3419 52 Men Tarried 100 Unmarried Living at Home 134 Unmarried Living away from Home 17 Total.............2...... 251 $ 63 to 99 29 to 58 43 to 81 58 to 79 63 to 95 22 to 41 40 to 80 34 to 80 85 37 54 53 JUNIOR HIG SCHOOL AND GRAnDE 7 - 9 Women Married Unmarried Living at Home Unmarried Living Away from Home Total........... Men -larried matrried Living at Home Unmarried Living Away from Home Total...~ '.. e e. 132 438 375 945 85 53 63 59 52 to 102 41 to 76 48 to 85 44 to 84 74 to 119 35 to 80 40 to 109 57 to 112 245 61 23.329 SWIOR HIGH SCHOOL Women barried 252 Umarried Living at Home 382 Unmarried Living Away from Home 457 Total............. 1091 Men Married 768 Unmarried Living at Home 150 Unmarried Living Awy from Home 85 Total...................... 1003 92 51 64 87 89 50 54 57 95 44 67 90 63 37 43 43 79 33 50 67 to 111 to 73 to 72 o 84 to 147 to 68 to 88 to 115 -24, TABLE XXI(Con't) MNTHLY EIPEMS FOR MEAL Number Monthly Expense for Meals Report- Average Rang of Middle 50 Percent TEACHERS OF ATIPICAL CHITI — Women — Erried 41 89 72 to 104 UmNrrried Living at Home 74 56 43 to 87 Unmarried Living Away from Home 88 67 48 to 87 total......................... 203 71 47 to 92 Nom 'farried 1 93 - - Ufasrried Litivn at Home 4 43 26 to 73 Unatrried Living Away from Home 2 48 - - -250 - TABIE XII EELAO IONSHIP NB OF M OF CBILDREn TO IaENTLY EXPSE FOR EALS Baed on 111s larried Men Teachers in the Regular Day Schoolr of New York City Ma^ - 1926 Grades K - 6B Junior High School Senior High School Grades 7 - 9 Number NOSWber AvRerag Number Average umber Average of Report- pense Report- Expense Report- Expense Children ig ingiig 0 51 75 52 $79 183 84 1 8 82 - -89 236 100 2 12 98 64 99 197 100 3 5 89 29 100 95 112 4 2 90 15 132 34 121 5 0 - 8 153 16 142 6 1 95 0 - 4 155 7 1 150 0 - 2 150 8 0 - 1 150 0 - 9 0 - 0 - 1 150 TOTAL 100 ( s 5 92 768 $ 95 -61 - AIEN min BENTS PAID BY SEVEAL BCHAIG GROAPS Based on Reports from 1,621 Mn and 5,992 Waoi n teachers in sgl B ar Day Sohools of Nev York City. MOy, 1926 RAg K - 6B Ion KBrried Unmarried Living at Bome Unmarried Living away from HEoa Total.......... Non ~TVrried Unnarried Living at Home UOmarried Living away from Home Total........................ JUNIOR HIGH SCHOOL AID GRCBS 7 - 9 vomen -Brriod Unmarried Living at Hone Untarried Living away from Home Total......................... farrird Unmarried Living at Home Umarried Living away from Hoar Total......................... SHIOR HIGH SCHOOL Women Unuarried Living at Hoam Uhamrried Living away fron Homs Total......................... son -'karried Unmarried Living at Home Unmaurrie Living away froa Home Total.............. 770 1934 942 3646 $919 Lese than $200 $707 Less than $200 112 116 16 244 140 444 401 985 253 59 23 335 $684 Leos than $200 $475 Loss than $200 Less than $200 I 07 $907 Loee than $s ~81S 281 380 491 1152 805 159 91 1035 TELCHERS OF ATYPICAL CHILIIBf Toaen — rriod 45 Unmarnred Living at Home 74 Unmarried Living away from Home 92 Total............... 209 $965 $ao $1012 Less than $200 $757 $936 $994 Less than $200 $827 $650 $1000 Lee than $200 00 Less than $200 Non " —orried Unarried Living at Home Unmarried Living away from Home PTotal. *e.oeeee*e e *.e — ee e*. — -251-a 1 4 2 7 APPEIDIX B' SU3MARY OF THE STRAUSS RICCA BILL OF 1926 At a number of places-in the preceding chapters of this report of the Citizens' Committee on Teachers' Salaries references have been made to the salaries proposed in the Strauss Ricca Bill presented to the State Legislature in the spring of 1926. A summary of the proposals of that bill and of-the schedules at present in operation in New York City are presented in this Appendix. This is the second of the two so-called 'icca Bills proposing increased salaries for teachers. The first of these bills was passed by the Legislature in the spring of 1925 and was vetoed by Governor Smith. The bill which is su8 arized in this Appendix was likewise passed and vetoed in the spring of 1926. It will be remembered that these bills, and the schedules which they would have made effective, were drawn by representatives of the teacher organizations of New York City, Further discussion of this legislation will be found in Chapter I, page -252 - TABLE XXy License - 6B 7A - 9B STRAUSS-RICCA SALTAB SCHEDUrS ODR NEW TO ELEMBARYT SoC Present Schedule $1500. 11 x 125 92875 $1900. 9 x 150 $3250. Asst. to Principal Principal Teacher Clerks Sub stitutes Teachers of day Classes in English and Citisenship 934.00. 2 z 100 93600. $3750. 4 x 250 $4750. $1200. 7 x 100 $1900. $5.20 per diem $1900. 9 x150 $3250. $1900 9 x 150 $3250. BILL EK CITY TEACHERS DOLS '$600. 2 x 135 9 x 170 $9400. $2100. 2 x 160 7 x 200 93820. 93900, 3 x 200 $4500, $5100. 3 x 300 $6000. $1300. 11 x 125 $2675. $8.00 per diem lt 3 yrs. $2,50 - $2.00 per hr. After three yrs. $3.00 - $2.50 per hr. $500. bonus $3. per diem $2120. 2 x 165 7 x 210 $3920. $2100. 2 x 60 7 x 200 $3820. Senior Teachers Pupil Teachers Teachers of atypical pupils Jmnior High School -253 - TABLE XXIV STRAUSS-RICCA BILL (continued) License Principal HIGH SCHOOLS Present Schednles *6500. First Ass't.) ) ) Senior ) High Assistant ) School )Teachers Clerical and Laboratory Assistants Substitutes Home teachers of crippled children $5200. 5 z 200 $4200. $1800. 12 x 150 $3700. #1500. 12 x 100 $2700. $6.50 per diem Ricca Bill Proposals $70o0. 2 x 375 $7750. $4500. 3 x 250 $5250. 2150, 2 x 200 8 x 225 $8350. $1500. 12 x 125 $5000. $10.00 per diem 1st 3 yrs. - $8.00 after 3 yrs. - $11.00 $7.00 2 x.50 $8.00 $11.00 $5.50 t6.50 IVENING HIGH AID TRAD SCHOOLS $6.50 Teachers Assistant to Principals $6.50 Clerical, Laborato Z and Library Assistants $3.90 Principals and Supervisors $9.10 STUING LElMBTAWr SCHOOLS Teachers on probationary appointment 44.50 on permanent appointment $5.50 -254 - TABLE.XXIT EVENIG iElM TARY SCHOOLS (continued) License Present Schedules Teachers in Charge, Fewer than Twelve Classes $5,20 Teachers in Charge, Twelve or More Classes $6.50 Hicca Bill Proposals $7.50 $.800 Principals and Supervisors General Assistants $7.80 $ 950 Probationary appointment t5*50 Under permanent appoint$6.50 ment VACATION HIGH SCHOOLS $8.0o Teachers Asst. to Principal Principals Clerical Assistants $9.50 $5.00 per sumer session 7.00 " F6.00 VACATION ELEMETARY SCHOOLS $3.90 Teachers Assistants to Principal Principals Supervisors $5.50 1st 3 yrs. $6.50 after 3 yrs. *8.00 1.o00 '10.00 95.85 $7.80' Supervisors Principals Teachers COMlONITT CEItS AND VACATION $7.80 $5.20 $3525 $10.00 $8.50 $5.50 1st 3 yrs. $6,50 after 3 yrs. -255 - TABLE XXIV. COWOJNITY CEnTERS AND VACATION PLAIGROMUDS - (continued) License Present Schedules Assistant Teacher Librarian and Pianist Teachers of Swimming and in Charge of Baths Substitutes Rioca Bill Proposals $4.00 lst 3 yrs, $5.00 after 3 yrso $6.00 1st 3 yrs. 7.00 after 5 yrs. #s.25 $3.90 $1.95 AP0ERHON ATLETIC CENMRS Teacher Supervisors $5.50 $6.50 -256W IV