RECORD OF PROCEEDINGS

OF THE
Convention of County Superintendents
(FIRST BIENNIAL SESSION, 1891.)
OF THE
STATE OF WASHINGTON
WITH APPENDIX.
OLYMPIA WASH.
O. C. WHITE.  .  .  .  STATE PRINTER.
1891.
379.797
Wa7reSERIALRECORD OF PROCEEDINGS
OF THE
CONVENTION OF COUNTY SUPERINTENDENTS
(FIRST BIENNIAL SESSION, 1891.)
OF THE
STATE OF WASHINGTON
WITH APPENDIX.
OLYMPIA WASH.
O. C. WHITE,  .  .  .  STATE PRINTER.
1891.M i fc.'Twe
;1ST' X/ .
«	4	-I	f
< * ' %.
(
i * * ; i
^.	(	t	<	t	(	C	^	C	f	c
4	<.	<.	<	*	ft	At	C	c	(	<
«	€«	«Cft<	(.	{	C
S	c	C	C	4	(
t '	<	t	<	I	t	<
t	1
« I
	' / <1 c	1	I'.	t	*	(	t	1		<	c	« c «	
	■* C ’ o	0 Cv				c	I	«	• *	c	/ <	c	I c
	< C (. <	( <>	<. c	c	c	V	C	f	< <	(	* <		%
	c O *>	< t I	f.	c		s	(	c	t i	<	< t		t (. 9
	c ‘.	V c	C r	f	<		<.	< t	*	t		c	S'
C t t
c	tit	e	c c
c	c t	t	<	(	t	c
<	r-s «	C	(	((	f.c	l
«.	■>	C c
< <	-
r. C	t
t c	C	-c	c
C	c	C	0
5 Q c c V I255900
CALL FOR THE CONVENTION.
Olympia, Washington, March 14, 1891.
To the County Superintendents of 'Washington .
The seventh subdivision of section 3 of chapter 12 of the Session Laws of 1889-90 reads as follows:
“Seventh: He” (the superintendent of public instruction ) ‘‘shall biennially, on or before the first day of May following the election of county superintendents, call a convention of county superintendents of this state, at such time and place as he may deem most convenient, for the discussion of questions pertaining to the supervision and administration of the school laws, and such other subjects affecting the welfare and interests of the common schools as may be brought before it/'
Section 17 of the same act provides that the county superintendent shall receive mileage at the rate of ten cents per mile for attending said convention. This includes mileage both ways, and the payment of it is not left to the option of the county commissioners. They must pay it.
4,	J.
The purposes of the law are clearly set forth in the law itself.
The convention could not consistently be called until after the ad-
journment of the legislature, in order that all laws pertaining to the common schools might be before its members. The legislature of 1891 has done its work; the school laws with which we shall have to deal during the next two years are ready to be submitted to those who are most intimately connected with their administra-
tion, and all preparations for executing them properly and efficiently are approaching completion in so far as this office is concerned. The rulings of the attorney general on a few points of law are desired before the meeting of the convention, but it is believed that these may be obtained by the first of April.
In view of these facts I have decided to call, and do hereby call, said convention of county superintendents to meet at the city of Olympia, on the 7th day of April, 1891, at the hour of 2 o'clock i\ m., to continue in session not less than three days, or for such4
CONVENTION OF COUNTY SUPERINTENDENTS.
length of time as the business of the convention may render necessary.
It is hoped that every county superintendent will be present, and that each will come prepared Avith suggestions for making county and state supervision more efficient. While special themes will be assigned to certain individuals to deal with, owing to their especial interest in the subject assigned, those parties are only to act in the capacity of leaders in that line, and all are requested to take an active part in the discussions. It is hoped that each will come prepared with plans for making county supervision a potent factor in the advancement of the cause of education, and with notes and queries relative to any provision of law that may not be clearly understood.
Programs will be sent out as soon as they can be prepared and printed.
In conclusion let me sav to all: Come to work: come to sret ac-quainted with each other; come to enjoy yourselves, but do not fail to come.	\rery respectfully,
R. B. Bryan.
Superintendent of Public Instruction, State of Washington.CIRCULAR NO. 23
Olympia, Washington, March 16, 1890.
To the County Superintendents of Washington:
A call for the first biennial convention of the county superintendents of this state has been sent you. Personal invitations have also been sent to many county superintendents, requesting them to select special topics or subjects upon which to prepare papers or addresses. None are excluded, and while limited time precludes the possibility of sending personal invitations to every superintendent, it is hoped that all will prepare themselves for an intelligent discussion of some topic, besides making some preparation for a general discussion of all topics. While the convention will possess no power to enforce its decrees, yet its intelligent action may be productive of most excellent results. Its deliberations will form an important part of the educational history of Washington, and aside from bringing about greater uniformity of work, many of its ideas will be crystallized into laws in the near future. Its history
J	*
will serve as a guide to future conventions of this character.
While disclaiming any desire to dictate the scope of the work of the convention, or to dictate any particular topic for its consideration, I have thought proper, in order to secure systematic work to as great an extent as possible, to suggest the following
TOPICS FOR DISCUSSION.
1.	How may greater promptness and greater efficiency be accomplished in the work of school district officers, especially in the matter of reports from school district clerks?
2.	Powers and duties of county superintendents under existing laws: What are they? Are they ample, or should they be increased? Should county supervision be more thorough than it can be made under existing: laws?
3.	School visitation: Its objects; frequency; duties of county superintendent by way of inspection; by way of criticism.6
CONVENTION OF COUNTY SUPERINTENDENTS.
4.	Should county supervision extend to the inspection of the records of school district officers, and the direction of these officers in the transaction of their official business? Is such authority con-ferred bv existing laws?
*/
5.	Duties of teachers in regard to the keeping of records according to law and the instructions of the Superintendent of Public Instruction: Are they faithfully and efficiently discharged? If not, what is the remedy? Should more be required of them?
6.	Teachers’ associations: Are they advantageous? Are they practicable at this time in this state? What should be the scope of their work? How can they be made more efficient and more stable in character?
7.	Teachers’ institutes: Should they be held during term time or during vacation? What should be their duration under existing laws? What should be the character of the work attempted; largely an exemplification of processes and methods, or largely didactical; i. e., lectures upon methods? In the employment of conductors and instructors should home talent be relied upon, if good, or should talent from abroad be given the preference? Why, or why not give the preference to home talent? Should the same conductor and instructors be employed year after year, or is a change preferable? Compulsory attendance — to what extent should it be enforced? Is the present law satisfactory?
8.	County superintendents’ records: Should a uniform system be adopted throughout the state; i. 6., should state authority prescribe forms and manners of keeping records in all the counties, or should each county superintendent be left free to adopt its own methods? Do existing laws authorize the State Superintendent to dictate in this matter?
9.	How much \>f a county superintendent's time should be de voted to office work? In what classes of counties should he devote all his time to the duties of his office? Can he teach without a certificate?
10.	Teachers’ examinations:	What is the real purpose? Is
greater frequency desirable? Would fewer examinations be sufficient? Are existing rules for the examination of teachers satisfac-tory? If not, in what particulars should they be changed? Why? Are the lawful requirements for certificates satisfactory?
11.	Appointment of examiners — construction of law relating to their appointment: Should the term “highest grade of certificateCIRCULAR GIVING INFORMATION.
(
in his county’' be construed so as to give preference to' state and territorial certificates and diplomas, to the exclusion of first grade county certificates?
13. Issuance of certificates without examination: What grades of certificates should be so issued to graduates of the normal de-partment of the University of Washington? To graduates of state normal schools? To persons holding state or territorial certificates from other states? Should the word state be construed to mean only the states of the American Union, or should it be construed to mean a civic organization in its broadest sense?
13.	Indorsement of certificates from other counties of this state,
for full time for which they were granted:	Should it or should it
not be practiced? If practiced, should it be universal; i. e., apply to all counties? Why 01* why not practice it?
14.	Temporary certificates (granted by county superintendents instead of indorsing, as heretofore): Should the restrictive clause,
44the requirements to obtain which shall not have been less than the requirements to obtain a certificate in this state," be strictly or liberally construed? Should such subjects as school law and state constitution be held to be contemplated by that clause?
15.	County superintendents’ annual report: Should it be a compilation of the reports of school district clerks, in the aggregate, as heretofore, 01* should it embrace the essential facts pertaining to each individual school district.
10.	The practice of teaching without a certificate; i. e., the practice of commencing work before being qualified according to law: To what extent is it an evil? What is the remedy?
%J
Many of the topics enumerated in the foregoing list may seem trivial and inappropriate to the occasion, yet when viewed from my standpoint and in the light of experience during the last sixteen months, they do not appear so. Numerous other topics will doubtless suggest themselves before the meeting of the convention, and it is hoped that every county superintendent will not only be prepared to express his thoughts 011 the foregoing subjects, but may be able to suggest others.	Very	respectfully,
R. B. Bryan,
Superintendent of Public Instruction, State of Washington.11
■
■RECORD OF THE PROCEEDINGS.
Olympia, Washington, April 7, 1891.
Pursuant to the call of the Superintendent of Public Instruction. the county superintendents of the State of Washington met in convention at Columbia Hall at 2 o'clock p. m., and was called to order by State Superintendent Bryan. The following county superintendents responded to roll call: F. A. White of Chehalis, A. B. Dorsey of Clallam, I. X. Lafferty of Clarke,
tJ	'	V
John Woods of Columbia, AY. A. Berry of Cowlitz, H. C. Ben-bow of Garfield, Y. E. Harmon of Lewis, Mrs. K. A. Mason of Skamania. B. H. Dixon of Snohomish, L. R. Byrne of Thurston, Miss Minnie O'Connor of Wahkiakum, J. B. Gehr of Walla Walla, C. W. Bean of W hitman, J. G. Lawrence of Yakima, V.
A.	Pusey of Kin o’.
The chairman, Superintendent Bryan, delivered a fitting address. in which he set forth the objects of the convention, after which Superintendent L. R. Byrne, of Thurston county, was elected secretary of the convention by a rim voce vote.
«y	tj
It was moved and carried that the secretary be allowed to appoint his own assistant, and that the assistant be chosen from among the lady members of the convention. Superintendent Mi ss M innie O'Connor, of Wahkiakum, was chosen as assistant secretary.
Is
The chair then appointed the following committee on programme:	V. A. Pusey, 1. N. Lafferty, II. C. Benbow, U. E.
Harmon, J. G. Lawrence.
The following named gentlemen were appointed a committee on form of county superintendents1 reports: J. H. Morgan, B.
H.	Dixon, ,J. M. Shields, F. A. White, W. A. Berry, and A.
B.	Dorsey.
On motion, the convention adjourned until 7:45 p. m.10
CONVENTION OF COUNTY SUPERINTENDENTS.
EVENING SESSION.
The convention reassembled at 7:45 p. m., with a u'oodly number of superintendents present. State Superintendent Bryan occupied the chair, and the programme was proceeded with, which was as follows:
1.	Solo, by Mr. Crandall.
2.	Address of welcome on behalf of the public schools of Olympia, by City Superintendent B. W. Brintnall.
3.	A pleasing and able address on behalf of the state, by Hon. P. 1). M oore.
4.	A beautiful and impressive response on behalf of the county superintendents, by Superintendent J. H. Morgan.
5.	Duet, by Misses Brintnall and Brown.
6.	An able address by State Superintendent R. 1>. Bryan, as follows:
It is my purpose this evening to deal with certain features of the subject of education in general, to deal with the public school system as the great factor in the process of mental discipline in particular, and to deal somewhat briefly with the system or systems of supervision provided for that class of schools which in this state are designated as common schools. For the purposes of this address it is not necessary to discuss the problem of human existence, nor to inquire into the legitimate ends and aims of life. Suffice it to say that the legal responsibilities of life, as a general proposition, begin with the birth of that period known as majority, though morally they begin much sooner, and end with the dawning of a second childhood, 01* when the death-angel shall have claimed the individual as his own. The fact that a course of preparatory discipline, mental or manual, or both, is necessary to fit the individual .for the duties and responsibilities of this period of existence, is now universally admitted in all civilized, or at least in all enlightened, countries. Nor is this conviction of recent birth. The ancients, 110 less than ourselves, recognized the truth of the proposition and acted upon it with no less zeal. That their course of discipline differed materially from ours is due largely to the fact that their modes of life differed radically from ours. For it is an admitted principle to-day, and was perhaps not less so in days of yore, that
y	#	f
the character of the disciplinary process should depend upon thePROCEEDINGS OF FIRST BIENNIAL SESSION.	11
character of the sphere to be tilled by the individual to be educated, .while the degree of education should be determined by his capabilities and the assumed importance of his sphere in life.
To trace the history of educational processes, or to recite the evolutions of progressive thought along that line, is 110 part of my subject. Suffice it to say that the original policy of preparatory discipline seems to have been prompted by purely selfish motives, and strange as the statement may sound, I believe it to be capable of positive demonstration that, while the element of benevolence is not entirely wanting, the controlling principle, the motive power, the mainspring of action in our system of to-day, is not less seliish than was that of our remote ancestors. Nor am I apprehensive of a successful contradiction of the proposition that the idea of free schools had not its birth in free America; but while the idea antedates even the birth of the Christian era, the credit of reducing it to actual practice and making it an essential part of our social and political systems — an essential part of our civilization — niav not unjustly be claimed as the product of the best minds of the great republic of the New World. Nor is the oft repeated and generally admitted doctrine that the primary object of a system of popular education is to create and maintain an exalted citizenship — a perfect community—robbed of any great degree of its force, beauty or truthfulness by the fact that the controlling element in its establishment is born of selfishness and not of charity; for it is an admitted principle, that self-preservation and self-protection are properly, and have ever been, the first law of human action.
While freely admitting the correctness of the now popular doctrine, that to educate the rising generation thoroughly, and prepare them for the duties and responsibilities of an enlightened citizenship, is a stern Christian duty, 1 am not the less prepared to assert that popular education is a measure of absolute economy. Let any candid man who would controvert this proposition go with me to the plains of Mexico or to the isles of the Indies, and witness there the conditions which 1 have witnessed in those countries, and he will yield the point at once and forever. Let me ask of my audience, what proportion of the value of your property is due to the intelligence and culture of the community in which it is situated? Supplant the intelligence of the fair city of Olympia with the ignorance of Azua, Samana, or Matamoras, and what percentage of the value of your property will remain? Supplant the intelligent population12
CONVENTION OF COUNTY SUPERINTENDENTS.
of the Emerald State, whose plains and mountains, forests and inland seas, rich valleys and majestic rivers teem with untold millions, of wealth, with the population of Mexico or Cuba, and what per cent, of the present value of your property will remain? Compare, to-day, the new-born city of Tacoma w^ith the venerable city of Acapulco; Seattle with Guaymas, or Port Townsend with Vera Cruz. Reflect, and answer candidly to what cause the vast difference in favor of the newer cities is due. Answer that it is not due to the intelligence and thrift that is born of the culture and refinement, enterprise and skill — the legitimate offspring of popular education— and you would at once brand yourself as a lunatic, a falsifier, or an idiot. Startling as the statement may appear, I assert it without the fear of successful contradiction, that the burden of taxation, of which certain classes in our own country are so much prone to complain, is light and trifling as compared with the burden of paying the smaller amounts exacted in those foreign cities and countries which I have named. Which is easier, to pay $10 as taxes on property worth $1,000, with an active market for everything that is produced, and with thrift, enterprise and intelligence surrounding it, or to pay $5 on property worth $200, with no market for anything at any price? Which is cheaper, to pay one per cent, taxes on the taxable valuation of property for the education of the youth of the country, and thereby build up an intelligent and thrifty community which will enhance the value of your property, or to pay little or nothing for educational purposes, and thereby surround your property with an undesirable element that adds wealth to nothing and breeds moral pestilence and crime wherever it exists? Which is more agreeable to a cultured citizen, to pay taxes to educate the boys of to-day, and mould for them characters that will render them desirable and useful citizens in the community, or to permit them to grow up in ignorance and vice, and afterward pay an equal or greater amount for the purpose of trying, convicting and imprisoning or hanging many of them? It may be suggested that the picture is overdrawn. I have not time to produce statistics to demonstrate the truth of my statement, but they are available to any one who will take the trouble to search them out, to prove beyond the possibility of a doubt, that the difference in the cost of maintaining peace, and penal and reformatory institutions in an enlightened and cultured commonwealth, and in maintaining them in one of the opposite character, is more thanPROCEEDINGS OF FIRST BIENNIAL SESSION.	13
sufficient to defray the expenses of maintaining ample school accommodations eight months in each year. Which is greater, the cost of maintaining the reform schools of a state, or the cost of maintaining the state university? Which is greater, the cost of maintaining all educational institutions of a state put together, or the cost of maintaining its prisons? It may be said that even with the most enlightened communities the maintenance of these re. formatory and penal institutions will still be a necessity. Granted;
but vice in very many instances is an inheritance, and is the off-
%) %) J
spring of the ignorance and vice of past generations; and to eradicate it is the patient work of generations; but the less crime, the less the cost of maintaining institutions for suppressing it.
Again, the fact that the free school has not supplanted the prison and destroyed crime is very largely due to the imperfections of the system as it has existed in the past. Shall we destroy or neglect the system because of its partial failure in the past, or shall we redouble our efforts to make its influence more potent for good? The policy of maintaining school three, four or five months each year and permitting from one-third to one-half of the youth of the community to absent themselves at pleasure from even these short terms, is silly, suicidal and criminal. Taxation — the taking of private property for public use — is only justifiable upon the theory that the donor receives, either directly or indirectly, the benefits of his contribution. A no less eminent authority than Chief Justice Marshall decided, in the infancy of the republic, that the only theory upon which a school tax can be levied and collected is, that the donors are to receive the benefits of their contribution in the way of insuring greater safety to life and property. If this be true, can the doctrine be successfully controverted, that
7	%J
if A is compelled to pay taxes to educate B’s children, B’s children should be compelled to attend school and receive the full benefits of the contribution in order that A may reap the reward of his compulsory investment? In other words, when viewed from a rational and unbiased standpoint, is not the payment of taxes for the support of public schools an implied civil contract to which both parties should be legally bound? Knowing full well that the doctrine is not popular in the liberty-loving West, I am nevertheless an unqualified advocate of compulsory education; and while so situated as to enable me to do so, I shall work for the accomplishment of that end, endeavoring to approach it just as rapidly as a14
CONVENTION OF COUNTY SUPERINTENDENTS.
wise discretionary policy will justify. It may be said that universal education will not remove the necessity for peace officers and reformatory and penal institutions. I will concede the point; but with intelligent citizens I need enter into no argument to establish
O	.	~
the fact that the higher the culture of the community the lighter will be the burden of maintaining these institutions. What are the most burdensome items in appropriation bills to-day? Consult the list of expenditures made bv vour county commissioners, and the
JL	mJ	%)
appropriations made by state legislatures, and see if the cost of maintaining the peace, and the reformatory and penal institutions are not the most onerous items in the list. The trial of one criminal, in many instances, costs more than the entire education of a child. The cost of constructing prisons throughout the land is approximately $1,000 for each prisoner incarcerated; the cost of insane asylums and reformatory institutions is about the same; while the average cost of school houses and their equipments in Washington to-day is $22.90 for each child of school age. And
O	J	O
from wdiat classes do the criminals and incorrigibles very largely come? Not from the educated, cultured and refined; not from those who have felt the genial influences of the school room. A certain prominent but erratic educator a few years ago made the assertion, in an address to the National Educational Association, that sixty per cent, of the criminals confined in state prisons are high school graduates. The statement was promptly and emphatically disputed, and a committee was appointed to investigate and report at a subsequent meeting. The investigation revealed the fact that in the eastern Pennsylvania penitentiary, out of 487 convicts, but seven were high school graduates, and but five had ever gone beyond the high school course; that eighty-two had never attended any school; and that of the 390 others only 169 had ever reached the grammar grade. The investigation of numerous other prisons disclosed a similar state of facts, in some cases even more unsatisfactory to the apologist for ignorance. Without a further resort to statistics, I am not apprehensive of contradiction in making the assertion that the higher the culture of the masses of the people in any community, the safer is life and property and the more enjoyable is human existence in the possession of worldly comforts.
But the social benefits and the item of economy are by no means the only facts to be considered. It is a recognized fact to-day,
*	o	j	/
among thinking people of all classes, that the very foundation ofPROCEEDINGS OF FIRST BIENNIAL SESSION.
15
our political structure is the thorough education of the people. And yet this undisputed fact is most generally lost sight of by the great masses of the people amid the smoke and turmoil of the battle for gain, even by the thoughtful and patriotic classes of all sections. Relying upon our almost boundless resources, and upon the fact that the nation has once successfully passed through the ordeal of civil strife, the great mass of the people give little thought to this subject. They count the millions of armed men that might be arrayed against a foreign foe, and view with feelings of profound satisfaction our wonderful resources for conducting protracted campaigns. They take little heed of the lowering clouds of political discontent that frequently manifest themselves within our borders,
or of the premonitory symptoms of dislovaltv that occasionally 1 til i
disturb the political atmosphere. Political dissensions within, neutralizing: boundless resources, and great extent of territory
CD	7	CD	%J
becomes an element of weakness instead of one of strength, if unity of feeling is not created by an intelligent understanding of what
r	J	CD	CD
constitutes our best interests. While great questions of political economv continue to divide the country sectionally, neither bound-
%j	•/	%J	*
less resources, great military strength nor extensive domain can in-
7 O	%J	o
sure immunity from moral, social and political disintegration in the absence of an educated, intelligent, patriotic regard for the institutions of our own creation. Greece and Rome have both been mistresses of the world, and Carthage was once mistress of the seas. The fleets of Carthage spread terror and dismay along the shores of Southern Europe; the legions of Rome marched in triumph from the borders of the Sahara to the Baltic, and the hosts of Alexander swept in one triumphal campaign from the Hellespont, through Palestine, Egypt and Arabia to the shores of the Indus, and gazed in wondering admiration upon the impassable barriers of the cloud-capped Himalayas. Yet where are those nations to-day? Carthage is unknown among nations of the earth, and lives only in the history of her unsavory deeds. Rome long since crumbled and decayed, until nothing now remains of her civic organization;
and Greece — the proud and far-famed Greece of ancient times___________________
has dwindled to an insignificant shadow of her former self, that lies upon the borders of the Jvgean sea, existing as a civil organism
*	o	cj	0
only by virtue of the mercy of the more powerful states of Europe. Do you inquire the cause? Ask of the demon Ignorance, who stalked abroad over all the land, poisoning the fountains of social16
CONVENTION OF COUNTY SUPERINTENDENTS.
and civil life—vice for his companion, misery and want his offspring, superstition his dart, degredation and decay the legitimate heritage of the serfs over whom he held tyrannic sway. The moral and mental status of the masses was not equal to the requirements of the occasion, and civil power was in the hands of a corrupt, ambitious and unsympathizing aristocracy. The people did not understand the lawTs by which they were governed nor comprehend the principles upon which their governments were founded. The ignorance of the masses was the price of liberty and the bounty upon which a select few subsisted and prospered.
Nor need we search the pages of ancient history for striking illustrations of the effects of this blightinp* curse. We need only
N	o	~	J
turn to the records of our South American neighbors, those of Mexico, or still worse, to those of some of the states of our own union, for undeniable proofs of the truth of my propositions. Thrift and progress in those countries are unknown, as we understand the terms, and political revolutions are the order of the day. In one republic of South America, but little more than half a century as;o, fourteen revolutions and counter-revolutions occurred within a period of ninety days; the ink has now scarcely dried upon the records of a revolution in the Argentine Republic, while to-day the Republic of Chili is shaken from center to circumference in the throes of a fratricidal political revolt. The murmurs of political discontent are constantly heard amono; the mountains of Mexico, and no surprise would be felt at any time if the thunders of revolutionary guns were to be heard without the walls of her picturesque and romantic capital. While the storm that prevailed in our own country from 1861 to 1865 purified the atmosphere for the time being, and the shackles fell from the limbs of 4,000,000 of slaves; while the swarthy demon, slavery, that had been defended from the rostrum and the pulpit from before the foundation of our government, took his final flight, yet we should not console ourselves with the idea that the crisis is forever past. Other disturbing elements than slavery exist, and still others are liable to be born in the evolutions of the political arena. To-day the red flag of the anarchist floats in the streets of our populous cities, and the murmurs of political discontent are frequently heard in large portions of our common country. Future storms may be averted by the intelligence and virtue of the people, but they will gather and burst upon us when least we expect them, if we fail to educate the massesPROCEEDINGS OF FIRST BIENNIAL SESSION.
17
of the people to a true comprehension of their duties, responsibilities and interests as citizens of a free commonwealth. Little apprehension might be felt, perhaps, if every citizen were a native born American and were taught from infancy, at the parental fireside, to love and revere the institutions of his native land, or were the foreign elements all from the ranks of the better classes of the Old World. But such is not the case. While a fair proportion of them are from the ranks of the better classes of Europe, who soon become imbued with the spirit of American institutions and enthused with a love for our starry banner, yet a larger proportion are from the haunts of vice and crime, having no symyathy with us or our political and social systems. The door of the temple of liberty is thrown open to all, and from the shores of Europe come flocking in search of wealth, or fleeing from the consequences of crime, the violent Russian nihilist, the brawling German socialist, the poisonous French communist, the depraved and degraded Dago from the plains of sunny Italy, and the pest-breeding hordes from the shores of the Flowery Kingdom in far-off Asia. True, the latter are now legally barred, but do they not continue to come in undesirable numbers, entering our ports upon forged and fraudulent papers or stealing across our borders from Mexico and the do-
4
minions of Her Britannic Majesty ?
And these elements must be engrafted upon the tree of American liberty; they must be assimilated with our social and political systems, and the whole must be molded and kneaded into one harmonious and homogeneous mass. Otherwise our system must suffer disintegration and decay; for no system founded upon the principle of political equality can long survive the baleful influences of such elements. True, most of the countries of Europe have endured and are still enduring the poisonous influences of these people; but in those countries the masses possess no rights except such as are delegated to them by the monarch, while the throne of the monarch is propped up by the bayonets of military hirelings and the evil elements kept under subjection by the same despotic power.
What agency, then, shall be employed to render our mixed population homogeneous and patriotic? Can the ministry alone accomplish it? Can private schools and eleemosynary institutions be relied upon to compass the result? Such has not been the experience of the past. In the so-called enlightened countries relying upon these agencies alone, statistics show that from forty-four to —218
CONVENTION OF COUNTY SUPERINTENDENTS.
eighty-eight per cent, of the masses of the people are illiterate, while a large proportion of the illiterates are absolutely vicious. The American poople have already rendered their verdict in the case, and have declared the public school to be the only reliable agency. Then why this dissertation? Why argue a case that has already	been decided? Simply	for	the	reason	that, while
the lo°;ic of	the argument has been	admitted: while the decree
has sfone forth; while the machinery	has	been	set in	motion, the
CD	'	J	'
system is so imperfect and the apathy or indifference of the masses of the people is so great, that results are wretchedly unsatisfactory to those whose lives are devoted to this work. If but three or four months school each year be required, with an enrollment of only sixty per cent, of the pupils of school age, and an average daily attendance of but sixty per cent, of those enrolled, then there is but little need of argument or agitation. But it may be claimed that the picture suggested is overdrawn; that the facts are not so bad. Permit me to say that I speak from the records when I assert that in the country at laro;e not more than
J	CD
forty per cent, of the children of school age ever attend school after passing their fourteenth year; that sixty per cent, of all the children who are enrolled in school retire before entering upon their fifteenth year, with wretchedly incomplete educations, and totally unprepared for the duties of citizenship, or to commence the battle of life with a fair prospect of conducting an intelligent or successful campaign. True, in cities and towns the case is not quite so bad; in rural districts it is even worse. Even in our beloved State of Washington the picture presents a forbidding aspect to those who will take the pains to give it a fair but critical examination; and I shall not find it necessary or advisable, in discussing the shortcomings or imperfections of school affairs on this occasion, to go beyond the boundaries of our own fair state. Suf-
CD	J
fice it to say that in numerous states of the union educational •/
affairs are on a much more satisfactory basis than they are in Washington, while in numerous others the conditions are far inferior to those of our own state.
By a compilation of the latest reports from the several county superintendents of this state, these facts are disclosed:
The average length of time that school was taught during the
o	o	o	o
year ending June -30, 1890, was 4.86 months. The total number of children of school age in the state at that time was, as reportedPROCEEDINGS OF FIRST BIENNIAL SESSION.
19
by the clerks of the several school districts, 87,813; the number enrolled in public schools was 55,964, or 73.7 per cent. The average daily attendance during this average school year of 4.86 months was 36,946 — 66 per cent, of those enrolled, or 42 per cent, ol the
»
entire school population of the state. This too, is in a country where poverty is as. little known as in any country in the world; where people maintain themselves in comfort with comparative ease, and more than all, where a large percentage of the population is centered in cities and towns, affording good school facilities and long terms.
Another important factor to be considered in this connection is the compensation of the teachers employed in conducting the schools, for in any vocation or calling, where any one who will may enter any field of labor for which education or nature has fitted him, the amount of compensation is a fair index of the general intelligence, enterprise, energy and capabilities of those engaged in that field. Truly, there are exceptions, but the criterion, as a general proposition, is good. The average wages paid male teachers during the year was $51.41 per month, and the average wages paid female teachers was but $43.31. Taking into consideration the fact that the average length of the school year was but 4.86 months, it will be seen that the compensation of the average male teacher for the entire year was but $249.85, while the average female teacher was rewarded with the munificent sum of $210.82^. But the worst has not been told. Eliminate from the system 124 town and city districts, where the average length of the school term was nearly seven months, and where the compensation of teachers is far above the average named, and we ascertain that the average length
O	7	©	©
of the school term in the country districts was 3^ months, with an average monthly compensation of $33.33-^ for male teachers and $31.12^ for females. These are facts, incontrovertible facts. They are not creatures of the imagination. Who, with fair ability, and the energy that is supposed to characterize the average American citizen, will tarry in such an educational field any longer than logging camps remain closed or a job of dishwashing can be procured? Under such conditions there can be no professional skill employed. Too often professional talent is not sought or desired. Too often it is a case of “any body can larn our youngsters; they’re small and don’t know much.” What unpardonable, criminal nonsense! If the body is sick, professional skill is called in at once, at least by20
CONVENTION OF COUNTY SUPERINTENDENTS.
all sensible people. If the mind is sick or undeveloped, any body will do as a doctor! To mold and shape the character of a human being, to train the mind and shape the future destiny of the child, any one will do wrho understands in a limited degree the rudimentary principles of readin’ writiir and ’rithmetic. Am I drawing upon my imagination? No; only picturing a state of things existing in numerous communities both within and without this state. Not many months ago I visited, in an official capacity, a rural school presided over by a stalwart gentleman who Haunted in my face a first m’ade certificate from one of the in'eat states of the union —
O	O
great in area I should explain. Among the other tortures to which I was submitted while discharging that unpleasant official duty, it was my misfortune to witness recitations by several little boys and girls who were just entering the field of mental torture. They were called up singly — not even afforded the comfort of each other's misery — and required to repeat A, B, C, from A to Z. When the task was completed, the little victim was dismissed without one word of explanation, to witness the torture of some little companion in grief. Each retired from his task with the consciousness that he could recognize A or B at sisrht, but with no more idea
CD '
of its value than an untamed Hottentot has of the nature of the 47th proposition of Euclid. I retired as soon as conscience pronounced my official task performed in accordance with law, but not until after I had suggested to the teacher that other methods of torturing children are sometimes resorted to in this state wTith equally as good results- as were likely to be brought about by his method. He returned to his native state the next spring, but too many of his companions in barbarous school-room practices still linger within the borders of our state, I fear.
I know that this is not complimentary to the intelligence and virtues of my fellow citizens; I know I shall be criticised for parading these facts before the public; but while my right hand shall know her cunning and my tongue shall be free to speak, I shall speak the whole truth, and shall answer to my conscience, my constituents and my creator. No man is prouder of his country or his state than I am, and I endeavor to allow no man to do more in proportion to his ability and his means to advance her interests or to add to her fair fame; but seeing these things as I see them, I cannot enhance her interests by concealing unpalatable facts. He who is not willing to know7 the whole truth and to assist in rem-PROCEEDINGS OF FIRST BIENNIAL SESSION.
21
edying the evils that are brought to his attention, is not friendly to his country, his neighbor or himself. He is not the perfect citizen that is contemplated by our fundamental law.
Another subject meriting criticism is the matter of providing a revenue for the maintenance of schools. Fines and taxation are the only sources of revenue at present, and must continue to be so for some time yet to come. The fines are an unimportant factor. The law passed by the first legislature of the state provides that the county commissioners in each county shall levy a tax of not less than four mills nor more than ten mills on the dollar for the support of schools. Unfortunately the revenue law, passed a day or
two later, limited the maximum levy to six mills, and contained an
%) *
ambiguous clause, apparently capable of an interpretation which does not limit county commissioners as to the minimum levy. Un-
%/
der the provisions of this act seven counties levied last year, for
the support of schools, less than four mills 011 the dollar, and one,
which is now making herculean efforts to secure a state educational
institution, levied but two and one-half mills. The average amount
appropriated per child of school age for the current year in this
state is #10.1)0, while the amount per capita for each prisoner in
the state penitentiary is approximately $190. Only 191 districts
out of the 1,300 in the state voted any special tax last year for the
support of schools, and many of that number were in cities and
towns needing it less than most of the rural districts. It is a
strange fact, but a fact nevertheless, that a special tax can be voted
in but comparatively few of the districts of this state, and especially
so in view of the fact that the levy made by county commissioners
•/ •/ %)
is in most cases inadequate. I would not willingly make invidious distinctions between Washington and any other state, but in the hope that heroic treatment may prove a healing balm, I will make just one. I11 the State of Kansas, from which I came, where grass-hoppers devour their substance, cyclones spread death and devastation over the land, and drouths consume the products ot‘ the field, the people of nine school districts out of every ten vote a special tax of from four to ten mills every year, and lie who is so penurious or unprogressive as to vote against it, need never raise his voice in appeals for public honors. This, too, in a state where almost her entire permanent school fund has become available, and this practice she must expect to continue through years and ages vet to come.22	CONVENTION	OF	COUNTY	SUPERINTENDENTS.
Another subject justly meriting criticism is the present process of testing the ability of an applicant to teach, and in this matter Washington will not compare unfavorably with most of her sister states. Two classes of persons in this state are required to obtain licenses to transact business — the saloon keeper and the teacher. Each must produce evidence of possessing a good moral character. With the mode of procedure in licensing the former I am not familiar, but I must assert my positive conviction that the mode practiced in case of the latter is unsatisfactory. With questions that are uniform throughout the state at each examination, and practically so from year to year, nothing like uniform results are obtained. A candidate receives a first grade certificate in the county of A, passes to the county of C and fails to get a second. Why? Simply because of the fact that the work is done by thirty-four different examining boards, composed of one hundred and two different varieties of mental organization. No two of these boards ever meet to consult in regard to matters pertaining to their work, or exchange views 011 the subject in any manner. Honest differences of opinion may exist in regard to the policy that should be pursued, and in many cases both parties are in the wrong. A11 exchange of ideas would be beneficial to both. Occasionally, perhaps, members of these boards may allow personal prejudice to influence official action, and occasionally a member may be found who proceeds upon the hypothesis that 44 My doxy is orthodoxy and your doxy is heterodoxy/' Various causes conspire to produce these different results. For example, the winsome smiles of a pretty girl are hard to resist, and he is a braver man than I, who can look upon a flood of tears unmoved. The real object of the examination — to ascertain what the applicant really knows of a principle, and whether he is capable of instructing others in that principle — is often lost sight of in the presence of some immaterial defect in an answer, and his credits are scored down to the tune of twenty per cent, in face of the fact that he thoroughly understands the principle involved, as shown by his manuscript. Divided responsibility in official or business matters is always bad, and thirty-four divided responsibilities will forever conspire to defeat the real object of the law in this matter.
Another defect in our educational system is lack of uniformity in school-room work, and lack of harmony, lack of systematic action in our system of supervision. A state superintendent is placedPROCEEDINGS OF FIRST BIENNIAL SESSION.
at the head of the system. Aside from a limited number of specified duties, his duties are vaguely defined or not defined at all, and
CD	4/
his powers to enforce any policy he may adopt outside of his specified duties, are limited. One prominent feature of his work is to unify the system, and as far as possible bring harmony out of discord. He may do comparatively little, or he may, if properly sustained, do much. But if he shall content himself with simply discharging those specific duties laid down in the statute books of his state, he will fall far short of the true spirit of the law as it has been interpreted by the ablest state superintendents of the nation. The policy of making his office a great storehouse of educational data — a great bureau of educational information, and the repository of all essential educational archives of the state, so that should the last vestige of a county superintendent’s records be consumed by devouring flames, they could be supplied from state headquarters without material loss, is one that is well established in all the great educational states of the union. Not less so the policy of connecting him officially with all educational institutions of the state. To this end have I labored in the past. Little was accomplished with the first legislature of the state; much more with the second, and much remains to be done by the third or some subsequent one. Aside from this, the spirit of interest or enthusiasm which he breaths into the educational organism, and causes to permeate every county and city organization, is of far greater importance than can be portrayed in feeble words. The subtle influence of his spirit cannot be appropriately described in song or delineated by the painter’s brush. Whether or not he whom the fortunes of political warfare have for the time being placed at the head of the educational system of your state is well fitted for the task, is not for me to say. No man can judge impartially of his own work, and decent regard for the sensibilities of one's hearers should forbid the expression of his own thoughts upon such subjects. If an earnest devotion to the cause and a total dedication of my time and energies to the work will accom-
•/	CD
plisli good results, I trust that I shall not entirely fail.
W hat has been said of state supervision, is equally true of county supervision. The county superintendent should be the active head, the controlling spirit, the motive power of the educational system of his county. Tie who will not cheerfully comply with every requirement of law; he who will not go beyond its strict letter and24
CONVENTION OF COUNTY SUPERINTENDENTS.
comply with its most generous spirit; he who will not endeavor to animate the whole system over which he is elected to preside — teachers, pupils, parents and school officers — with a spirit of loyal devotion to the cause of education, is not well fitted for the position. He who will, may inspire all with wThom he comes in contact with a degree of interest and enthusiasm, the good results of which cannot be expressed in words; and he who feels no interest himself can breed apathy, lethargy and mental pestilence. The office of county superintendent is no sinecure. The duties are onerous and the compensation in most cases is inadequate, as compared with that of other county officials, and inadequate to the legitimate demands of the position. This convention, gentlemen, marks the beginning of a new era in the educational affairs of Washington. Its results may be very important, or they may die of the apathy and lethargy which too frequently characterize not only ours, but every branch of public work. If its deliberations are wise and well conducted, you will return to your several fields of labor with a better understanding of your powers and duties under the laws of this state, and inspired with a new zeal and increased devotion. It is for you to determine. The control of the convention is in your hands. Will you, then, return prepared to insist upon obedience to the requirements of the statutes by your subordinates and your associates, or will you suffer the neglect that has characterized school affairs in several counties of this state in the past to continue as of yore? Will you return with your plans matured for securing more satisfactory results in your dealings with that
~	*	*/	CD
incorrigible creature, the district clerk, whose chief aim in official life in many instances seems to be the making of the life of the county superintendent miserable, or will you continue to indulge him in his habits of neglect and indifference? If I may be pardoned for a suggestion, let me recommend a patient and persevering forbearance with those who use their best endeavors to do honest work, even though that work may be of an inferior charac-ter, but for the benefit of him who ignores the law and scorns the obligations assumed in his oath of office, vindicate the majesty of the law and invoke its potent agencies. The administration of a single dose will generally serve to cure the ills of an entire county.
One parting thought. Observation, and not a little experience, have created in my mind the vague suspicion that the county superintendent is not valued at his true worth; that too little im-PROCEEDINGS OF FIRST BIENNIAL SESSION.
25
portance is attached to his work, his field of labor, by the public in general and bv his associate officers: that in the distribution of public favors lie is usually expected to take what is left, and expected to practice the strictest economy in the equipment of his office and in the conducting of his official affairs. If such suspicion be not a delusion, I beseech you to cure this evil as soon as possible. Stand upon your rights under the law, and invoke its power to maintain them. Assert and maintain the dignity and importance of the positions you occupy. In the estimation of any thinking, sensible man, who reflects upon the character of the work to be performed by you, it is far more important than that of any other county officer. The office is the most important in the gift of the people of a county. The results of your work are not of the present alone; they reach out into the future, and make their impress upon coming generations. It is yours to deal with more delicate things than record books, pens, inks and paper. Then stand upon your rights and clothe the position with the dignity that is due it, just as quickly as possible. Dispel this mischievous delusion if it exists. To be a citizen of a great, free country, that envelops the great body of a continent, that is bounded by the blue Atlantic 011 the east and by the broad Pacific 011 the west; that is
%J
bathed by the warm waters of the Gulf 011 the south and tortured by the ceasless roll of the icy waters of the Artie 011 the north; with resources that are boundless, and capabilities that are incomprehensible, is alone a distinction of which any man might justly be proud. To be a citizen of that gem of states which is blessed wTith more natural resources than any other in the union, and whose very name is a synonym of civil liberty, is the realization of an exalted
•/	%J	*
ambition; and to be an important factor in shaping and molding for this grand country and this grand state a noble, intelligent, patriotic citizenship, where peace, prosperity and all the higher virtues abound, is distinction that might well have been envied bv the most exalted gods of ancient Greece and Rome.
At the conclusion of the address, the convention adjourned until 9 a. m. to-morrow.26	CONVENTION	OF	COUNTY	SUPERINTENDENTS.
SECOND DAY.
*
Olympia, Washington, April 8, 1891.
The County School Superintendents' Convention met in
Columbia Hall at 9:30 a. m.. and was called to order by the
«/
chairman, State Superintendent Bryan. The following county superintendents answered to roll call:	R. C. Egbers, John
Woods, J. H. Morgan, C. S. Brumbaugh, Mrs. K. A. Mason, J. B. Gehr, F. A. White, W. A. Berry, N. B. Brooks, M.
7
Stewart, W. B. Turner, C. W. Bean, A. B. Dorsey, H. C.
t/ 7
Benbow, U. E. Harmon, J. Mills Helen, L. R. Byrne, I. N. Lafferty, V. A. Pusey, H. X. Martin, J. M. Shields, Miss Min-
ft/ /	ftJ '
nie O'Connor.
After roll call, the convention proceeded to business by a motion to take up and discuss the topics set forth in circular No. 23 by State Superintendent Bryan to county superintendents, which motion prevailed.
Then followed discussion on topic No. 1, “How may greater promptness and greater efficiency be accomplished in the work of school district officers, especially in the matter of reports from school district clerksV was opened by Superintendent Gehr, followed by Superintendents Brooks, Morgan, Lafferty, Turner, Benbow, Lawrence, and Shields; after which State Superintendent Bryan read and explained portions of the new law.
The discussion was ably continued by Superintendents Bean and Pusey.
After the topic being so interestingly and ably discussed, it became manifest to the convention that there should be a pamphlet of instructions to district officers, pertaining to the making of reports. So. on a prevailing motion to that effect, the following committee of three was appointed by the chair: Superintendents N. B. Brooks, of Klickitat; C. S. Brumbaugh, of Mason; J. B. Gehr, of Walla Walla.
Section 30 of the school law, as amended by the last lesrisla-
' •/ ^PROCEEDINGS OF FIRST BIENNIAL SESSION.	27
ture, was then read and expounded by State Superintendent Bryan, relating to this subject.
The question was asked by Superintendent Turner whether students, after passing the primary grade, should be forced to study or take language lessons in some form, or Whether such could be enforced or not? Superintendent White responded that it would be very difficult to enforce. There was a gener al discussion of the topic.
On motion, the convention adjourned until 1:80 p. M.
AFTERNOON SESSION.
Convention reassembled at 1:30 p. m.
Superintendent Morgan occupied the chair during the necessary absence of Superintendent Bryan.
Discussion on topic No. 2, “Powers and duties of county superintendents under existing laws. W hat are they' Are they ample, or should they be increased? Should county supervision be more thorough than it can be made under existing laws?" by Superintendent Benbow, who gave it as his opinion that there is but little to be accomplished by school visiting.
Superintendent Pusey gave it as his idea that there is much good to be derived from visiting Schools, and that his experience is to that effect; that teachers and pupils are benefitted by his visits.
Superintendent Bean gave some very excellent thoughts on the subject, some of his experience, and some interesting incidents of the same.
Superintendent Turner gave it as his idea that superintendents should, while visiting schools, provide himself or herself with a memorandum book for the purpose of taking notes of interest, etc.
Superintendent Morgan gave it as his opinion that school visits should be according to the actual necessity, and not by
c—'	tj
any certain number of hours.
Superintendent Brooks gave some light on the subject by a comparison with military organizations and others of like nature. which, as all know, are benefitted by superior officers28
CONVENTION OF COUNTY SUPERINTENDENTS.
frequently mingling among them, and that if a superintendent is energetic, he learns of the superior teachers of his county the best modes of teaching, and will disseminate them among other
o'	©
schools.
Superintendent Harmon said that superintendents should be very careful and try to impress teachers and pupils with the fact that they are personally interested in them.
Superintendent Bean encourages, as much as possible, visiting by district officers.
Superintendent Lawrence said that when teachers are found doing their duty, the children would naturally get along well.
Superintendent Turner suggested that as far as possible teachers and pupils both should be encouraged to keep things clean and neat as possible.
Moved and carried, that topic No. 5 be taken up for discussion.
No. 5, “Duties of teachers in regard to the keeping of records according to law and the instructions of the superintendent of public instruction. Are they faithfully and efficiently discharged? If not, what is the remedy? Should more be required of them?" was accordingly taken up, the discussion being opened by Superintendent Johnston, who gave a very interesting talk on the subject, followed by Superintendent Bean, who favored the idea of a law prohibiting teachers from drawing their last month's salary until said teacher reported everything correctly.
Superintendent Benbow asked for information concerning joint districts; whether both superintendents had a legal right to visit the joint school, etc., which was answered by State Superintendent Bryan, that they have under the present law.
Superintendent Turner asked to have an explanation of the difference between a union and a joint district. State Superintendent Bryan answered that a joint district is one embracing parts of two or more counties, and a union district is where two districts unite for the purpose of maintaining a graded school.
To a question by Superintendent Shields, as to whether a superintendent could change the proposed boundaries of the newPROCEEDINGS OF FIRST BIENNIAL SESSION.
29
district in the petition. State Superintendent Bryan said he would rather refer the question to the attorney general, though it seemed that the convention favored alteration, if necessary.
As to the question, “How long a time could a superintendent defer his decision after the hearing for a new school district?'1 the chair decided that the law was indefinite in the matter, and that county superintendents would have to be governed by their own judgment.
A paper by Superintendent Bean, on the subject of teachers' institutes, was then read, as follows:
TEACHERS’ INSTITUTES.
As the itinerant system of promulgating Christianity is designated to carry the gospel to those who would not otherwise hear it, so the svstem of associations and institutes amons; teachers is
J	«—’
intended to furnish professional knowledge and training to those teachers who are unable or disinclined to attend training schools.
CD
Our present institute is a growth, or rather a transformation and a growth combined. The county teachers' meeting has passed through two distinct stages, and is now in a third stage radically different from the two preceding. At first — and at a time not long since past — the county meeting was simply an association of teachers for one or more days for the purpose mainly of comparing methods of teaching and management. Each one was assigned work, in the manner of our present teachers’ meetings or associations.
Th is kind of work made evident the fact that teachers were deficient in the subject matter of the branches to be taught, as well as in methods of teaching them.
This argued the necessity of the second or academic stage of the institute, 111 which the branches were taught by instructors of eminent ability. To produce satisfactory results, it was of course necessary to continue the work more than twTo or three days. Very soon the meeting grew into the summer normal, lasting from four
CD CD	'
to eight weeks. In these institutes the object was to teacli the branches in the most approved and scientific manner. The teachers became pupils in fact, and were expected to copy the methods of their instructors.
Soon, however, teachers became dissatisfied with the idea of30
CONVENTION OF COUNTY SUPERINTENDENTS.
being mere imitators, and demanded to know why such and such subjects should be taught so and so. This demand resulted in turning the attention of the teachers more particularly to the philosophy of instruction, and the nature of the mind and its processes. Thus was ushered in the third or professional stage of the institute.
In this stage we proceed upon the assumption that teachers have acquired a knowledge of the subject-matter to be taught and that they have acquired it under the guidance of competent instructors. We assume also that they are in the habit of teaching correctly, or very nearly so. What our teachers now wish to learn is, more of the mind and mental processes, and to be better versed in the principles which underlie instruction. They also want to know what important changes, either in views or practice, are shown to be necessary by the most recent researches and experiments. All of these points can be well presented by the lecture method; hence, our modern institutes in the leading educational states are intro-ducing much lecture work by eminent educators.
Some of the leading objects of an institute, I conceive to be —
1.	To generate that enthusiasm which is produced by the
attrition of kindred spirits.
2.	To learn the subjects we are to teach.
3.	To learn how to teach and manage.
4.	To learn wrhy we do it thus.
%J
The first named and perhaps the most practical desideratum — to arouse enthusiasm—is secured by almost any method in the hands of leaders whose personal presence and power is such as to entitle them to that designation. While brilliant, active work on the part of a leader is essential, yet nothing short of a powerful personal presence will assure a lasting, profitable enthusiasm.
The second and third objects — to acquire a knowledge of the subject-matter to be taught, and to learn how to teach and manage— are perhaps best attained at an institute of the academic type.
The fourth desideratum — to learn the philosophy of education — can be reached, as has been said before, by the didactic or lecture plan.
In order to determine what style of institute is best suited to our present average teacher, it is necessary first to determine if possible what are his qualifications and deficiencies.
To begin with, our average teacher is a decidedly heterogeneous individual. He is of the common gender in this state, with aPROCEEDINGS OF FIRST BIENNIAL SESSION.
31
marked tendency towards femininity. He comes from all over the United States and Canada, and hence cherishes all kinds of notions about many subjects. He can, I believe, obtain a second grade county certificate, which indicates that he needs instruction. He has few well-defined ideas in regard to mind nature and the principles of pedagogy. He teaches mainly as his favorite teacher taught him, which is fairly well. He is almost helpless unless assisted by the inspiration of numbers and noise. His moral character is clear above the average. His business ability approaches zero.
With these desiderata and this composite of the genus teacher before us, we begin to try to arrange for an institute.
Considerations aside from those mentioned, chief among which
i
is 66 impecuniosity,” seem to prevent the long term academic institute in most counties, although very desirable 011 account of our lack of convenient facilities and opportunities for securing adequate normal training. The fact of the average teacher's not possessing satisfactory academic attainments precludes to a great extent the professional institute. As we do not wish to fall back to the simple teachers" association, it will probably be necessary to adopt a plan which shall be a union of some of the best features of all the types, and hold as long a term as the finances will permit.
I am of the opinion that the first half day, or even more, will be well spent if given entirely to the presentation of a few of the essential underlying principles of pedagogy, these principles to be used as tests of the subsequent work of the instructors. Then if teachers are encouraged to carefully apply these tests to the work of every recitation thereafter, they will soon learn that successful teaching is only that which has an end predetermined and a process definitely decided upon.
In some of the branches it is best to divide the institute into two or more sections. If two sections be decided upon, those who have never taught and teachers holding third grade certificates might constitute the lower division. The advanced section could do much professional work, while the other might do academic work mainly.
A still better plan, if it were adopted by the state, would be to have a graded course of study for institutes covering three or four years and have as many sections in the institute. The academic work laid out could be done during the year, and the time of the32
CONVENTION OF COUNTY SUPERINTENDENTS.
institute spent mainly in reviewing and testing. A certificate that the w^ork of a given year had been completed would admit the holder to the next year's section in	any	county institute.
J	J	J
Not more than two lectures should be delivered each week,	and
they such as will instruct, inspire	and	engraft the true	teaching'
spirit. All lectures should be subsequently discussed in a session of the institute. Teachers chosen at random should be called upon to reproduce the principal points of each lecture. Our average teacher is not sufficiently trained in hearing, criticizing, selecting and assimilating the salient points of a lecture to be left to himself in this important matter. The idea must be dissipated, that institute lectures are delivered merely for entertainment.
The programme of the institute should be arranged by the county superintendent, and religiously followed by conductor and instructors. The superintendent is supposed to know more about the peculiar needs of the teachers of the county than does any one else, and is therefore the proper person to arrange the programme.
The proper time, in my judgment, for holding a county institute, is immediately preceding the opening of the school terms. No one possessing the instincts of a true teacher would be willing to break into a term's work in order to save a few dollars while attending an institute or to secure pay for work that he did not do.
In the employment of a conductor and instructors, nothing but mere sentiment, it seeems to me, would dictate a departure from the universally accepted maxim of economy, “Get the best to be had for the money/' In this age of progress, when steam and lightning have annihilated distance, the terms home and foreign, when applied to educational interests, should be very nearly synonymous. The question, “Where does he come from?” is not so important as “What can he do for us?”
The time of meeting and the programme having been arranged, and the conductor and instructors having been employed, there yet remains much for the superintendent to do. He should communicate, either in person or by letter, with each teacher in his county, and urge upon him the necessity of attending for a definite purpose. He should see that the coming institute is thoroughly advertised, so that it will be anticipated as a gathering of importance. He should see to it that the citizens where it is to be held give the teachers a rousing reception. This will often settle the success or failure of the meeting.PROCEEDINGS OF FIRST BIENNIAL SESSION.	33
During the sessions tlie superintendent should have no regular work to do. His whole time is needed in looking after odds and ends, thus forestalling any unpleasant episodes and securing the most favorable circumstances possible for effective work by instructors and conductors.
Finally, when the institute has closed, it is to be judged not by the amount of entertainment it has furnished, nor yet by the amount of praise bestowed through the heartfelt resolutions upon the conductor, the instructors, the superintendent, the citizens, etc., not forgetting the choir and organist, but rather by the elevated ideals, the increased appreciation of the profession, the systematized knowledge and the enlarged capacity and purpose to add to the sum of human knowledge and happiness which are carried away by the teachers to the work of the approaching term.
The following were appointed by the chair as committee on resolutions:■ Supt. W. B. Turner, of Spokane; Supt. M. Stewart, of Pierce; Supt. Jolm Woods, of Columbia; Supt. L. W. Fansher, of Pacific; Supt. H. N. Martin, of Lincoln; Supt. J. M. Hellen, of San Juan; Mrs. K. A. Mason, of Skamania.
The following were also appointed a committee on laws, etc.: Supt. C. W. Bean, of Whitman; Supt. G. B. Johnston, of Whatcom; Supt. J. M. Shields, of Skagit; Supt. V. A. Pusey, of King; Supt. J. M. Hellen, of San Juan; Supt. F. A. White, of Chehalis; Supt. J. B. Gehr, of Walla Walla.
On motion, the convention adjourned until to-morrow at 9 o'clock A. M.
—3
l34
CONVENTION OF COUNTY SUPERINTENDENTS.
THIRD DAY.
Olympia, Wash., April 9, 1891.
County superintendents’ convention met at 9:15 a. m., with the following superintendents present: R. C. Egbers, John Woods, J. H. Morgan, C. S. Brumbaugh, Mrs. K. A. Mason. Minnie O’Conner, F. A. White, W. A. Berry, N. B. Brooks, L. W. Fansher, B. H. Dixon, J. B. Gehr, A. B. Dorsey, H.
C.	Benbow, U. E. Harmon, M. Stewart, W. B. Turner, G. B. Johnston, 1. N. Lafferty, Y. A. Pusey, H. X. Martin, J. M. Shields, L. R. Byrne, C. W. Bean, J. G. Lawrence.
State Superintendent Bryan gave a brief and pointed address on our state law providing for the adoption of text-books by the state board. He dislikes very much that the state law permits such great impositions by publishing houses.
Superintendent Pusey took the chair during the necessary absence of Superintendent Bryan.
The following resolution was offered by Superintendent J. H. Morgan, of Kittitas:
Resolved, That the county superintendents of the State of Washington, in convention assembled, respectfully request the state superintendent to prepare the questions for use in the competitive examination for scholarships in the Ellensburgh state normal school.
On motion, the resolution was adopted.
Paper by F. A. White, on Teachers’ Institutes, was next read. | A copy of this paper could not be obtained for publication.— Supt. ]
After a brief discussion of Superintendent White’s paper, a paper was read by Superintendent Morgan on “Powers and duties of county superintendents under existing laws; what are they? Are they ample, or should they be increased? Should county supervision be more thorough than it can be made under existing- laws?" as follows:
Superintendent is a pretty comprehensive word. The little boy who learned that super means above, and discovering that tenPROCEEDINGS OF FIRST BIENNIAL SESSION.
35
seemed to be the framework of the rest of the word, concluded that it must mean belonging to the upper tens, was somewhat in error, especially in Washington. (I presume I may be pardoned for leaving off the usual train of adjectives that are supposed to accompany Washington.) His conclusions were simply a little erroneous— I mean the conclusions of the little boy, not those of Washington. Super does mean above, and presumably the superintendent is above, and makes use of that above position for looking down upon and over his charge, beholding its condition, noticing its defects, considering how best to remedy them, here pulling out a tare and supplying its place with something more useful, there cropping off an injurious appendage; watching, suggesting, thinkin planning, endeavoring to get rid of drones in the school room, and supply their places with live, energetic teachers; teachers who will not only instruct in the special branches required by law, but who will enter into the work of character building, who will look after the morals and manners, who will teach by example as well as precept, who will ground in the principles of true American citizenship, who will instill into their youthful minds the spirit of patriotism to such an extent that when they become men they will march to the front at short notice to defend those principles that give us our freedom— that will be such loyal, upright, law-abiding citizens that no necessity will exist for an uprising of the people to administer punishment to criminals because the laws of the land can no longer reach them, as occurred in New Orleans but a few days ago.
%J
Nor yet is his work supposed to be done when he has taken this comprehensive view of the teacher in his work, but he is supposed, while in this above or super position, not to overlook the school officers and patrons, but to consider whether their doings may be improved, whether they are lending the teacher the proper support, whether they are aiding him bv instilling into the minds of their children the importance ot‘ obedience, the importance of punctuality, the importance of regularity, the importance of being little gentlemen and little ladies with a view to becoming grown-up gentlemen and ladies, whether they are visiting the schools and commending the efficient work of the teacher, and pointing out to him privately ways in which they think little faults may be remedied, whether they, by their visits, are encouraging the children in their endeavors to grow and become large mentally and morally as well36
CONVENTION OF COUNTY SUPERINTENDENTS.
as physically, whether they realize and act upon the principle that the common school is the foundation and mainstay of good gov-
J	CD	C7
ernment and good society.
But, says some one, you are talking of the duties in a general way, without specifying. But when our legislators come together they find it necessary to specify to a great extent the powers and duties of the county superintendent, and cannot make him a little imperial personage as your remarks seem to indicate that he should be. Perhaps the point is well founded. At any rate, let us begin
to narrow our surveys, to diminish our horizon and find out what
«/ *
the actual situation is.
There are many little points to which I need not call your attention, which are perhaps as well put in our school law as in any other. For instance, such as the time he shall hold his office, the distributing of various blanks furnished by the state superintendent, the appointing of a county examining board, the appointing of school officers, the apportioning of the school moneys, the filing of certain papers and documents in his office, etc.
One of the first things that impress those of us who held the same office under the territorial government, is its comparative liberality. While not so liberal as many of us in the small counties would wish, it is still a decided improvement, a step in the right direction. Not only this, but in case we are burdened with work we are allowed to appoint a deputy, at our own expense.
But I must pass on. Each county superintendent shall have the power, and it shall be his duty—(1) to exercise a careful supervision over the schools of his county, and to see that all the provisions of this act are observed and followed bv school officers; (2) to visit each school in the county not less than one nor more than three times in each year; this is followed by a provision concerning city schools, which is ambiguous, but I am not concerned with that. I have been considering, however, how I shall manage to exercise a careful supervision over the schools in my county, since my superiors, our honored legislators, have said that I shall do so, but shall not go to the school more than three times during the year. In some instances the same district has three different
%J
teachers in the same room in one year— rather a deplorable condition of affairs I am free to admit — but at the same time such a district is liable to need more of this careful supervision than many others, and in case the superintendent, in his desire to carry out thePROCEEDINGS OF FIRST BIENNIAL SESSION.	6i
law, has visited the school three times before the third teacher arrives, it will become necessary to exercise that careful supervision from a distance. Presumably, however, our lawmakers only meant to say that a superintendent shall not receive pay for more than three visits, and did not mean to say that under 110 circumstances should he visit a school more than three times during the year. Still the error exists. The superintendent should be paid by the day for visiting schools instead of by the visit.
I next wish to call attention to the fourth specified duty, which is as follows: To enforce the course of study adopted by the board of education, and to enforce the rules and regulations required in the examination of teachers. These are both good provisions if carried out. The latter can, and I presume is, but it is a very different matter to carry out the former. It is true that it is made the duty of the superintendent to deduct twenty-five per cent, of the funds from that district in which the teacher fails to do so, but the enforcing of that provision in many districts will simply result in causing certain pupils to leave school, and hence I conclude that in order to enforce this provision, a compulsory school law is necessary. In my judgment, for this and many other rea-
c	tl	CD	'	y
sons, we should begin now and work for that end. A sufficient sentiment ought to be created in its favor within the next two years, to cause our next legislators to pass such a law.
The seventh requirement seems to me to border 011 the verge of an impossibility; for instance, “to carefully preserve all reports of school officers and teachers, and at the close of his term of office turn them all over to his successor and take a receipt for the same.” Ilow an incoming superintendent can give a retiring one a receipt to the effect that he has received all such documents, is beyond my comprehension. No one knows what has been received by the retiring superintendent except himself. I can but wonder how the thirty-four different receipts given in January last in this state, under that provision, were worded.
Section 19 of the school law is defective, in that it allows only those persons residing in the new district the right to appeal to the county commissioners, hut I am informed that lias heen changed in the amended law that will be operative in June next. In this one case the power of the superintendent is a little too great.
My experience of last Wednesday, and on several other occasions prior to that culminating time, have very nearly convinced me that38
CONVENTION OF COUNTY SUPERINTENDENTS.
in the consideration of a petition asking for the formation of a new district or a change in the boundaries of one or more old ones, the superintendent should have the power, in case he deemed it advisable, to take testimony under oath, and compel those who are acquainted with the facts to state them. When a little neighborhood disturbance gets control of the people to such an extent as to cause them to endeavor to sever their school district, they are liable to be very inconsiderate in many of their statements, when they know that they are not testifying under oath and that a complete record of their statements cannot be made.
The superintendent, in the apportionment of school moneys, ought not to be compelled to discriminate between new districts as he is under section 24 of the school law. For instance, if a new
district is formed by a division of an old district, so soon as school
%) '
is commenced in the said new district, the superintendent must order a special census taken in the new district, and in the old one of wThich it was formerly a part, with a view to giving the said new district its proportionate share of the funds to the credit of the old district, at the time when school actually commenced in the new district, and he must make an equitable division at each apportionment thereafter during the year. But if that new district happens to be formed from territory that is not included in any district, then they can not have any school the first year unless thev pay for it,
%J	%J	tli
and thev must have the school to commence within eio’ht months after the creation of the district. It matters not how poor these people are. It may have been their extreme poverty that forced them so far out on the frontier in the unsurveyed regions endeavoring to make a home for themselves upon government land. It is a shame that our young state should start out with any such class legislation. Have we a free school system in Washington? Yes, except for the people who brave the hardships incident to a frontier life, but they must pay for one term of school of three months before they can be allowed to reap the benefits of this great free school system.
Here I wish to deviate for the purpose of saying that the duties of the district clerk should be clearly and succinctly enumerated,
%j
with penalties attached for the non-performance of those duties. And in case the directors of any district make a statement to the
%J
superintendent, under oath, that the clerk of their district refuses to do any of his specified duties, then it should be the duty of the superintendent to declare the office of clerk of that district vacant,PROCEEDINGS OF FIRST BIENNIAL SESSION.
39
and proceed to appoint some one to act as clerk. This may seem strange to some of you, but we have a case in point in Kittitas county. The business of the district has been blocked since some time in January. A $1,200 school house was built and furniture
«/ *
for the same was ordered; the house has been completed nearly three months and the furniture remains in the depot with a storage bill accumulating and the district is kept without a school, all in consequence of a narrow-minded, so-called lawyer being clerk and positively refusing to do the bidding of the board of directors stubbornness in the superlative degree. The directors first appealed to me, I examined the school law carefully and found that I could do nothing for them, and referred them to the prosecuting attorney. He has been about two months trying to accomplish something by means of a writ of mandamus, but has not succeeded. T finally wrote the directors advising them, under a recent decision of the state superintendent, to call a meeting some day when the clerk was away from home and appoint one of their own number clerk and sign all the warrants they wished. That seemed the way out of the trouble, but the county treasurer informed them that he could not pay such a warrant, and I am now trying to obtain the attorney general as to whether the treasurer should honor such a
J ZD
warrant. In the meantime the blockade continues. An ounce of preventative is worth a pound of cure.
But, perhaps, I am unduly lengthening this paper. In many respects our school law is good. Experience will point out the defects, and every superintendent here already has a bit of experience, and I trust the question will be thoroughly discussed. The superintendent should be an important factor in his county. He should be a superintendent in deed and not simply in name. Now is the time to determine whether we are too much cramped~— whether we have sufficient power under existing laws to enable us to perform our duties in the best possible manner — ever remembering that our whole duty can not be encompassed by legal specifications.
Next on the programme was a paper on the subject of 44Teachers’ Wages," by Superintendent Turner, as follows:
The practical side of life is always interesting. Theories entertain, but facts arrest our best attention if they touch our lives in any way.40
CONVENTION OF COUNTY SUPERINTENDENTS.
The question of compensation is one that generally comes home to the individual in this utilitarian age. The compensations of the teacher can be classified as of two kinds — indirect and direct.
The indirect compensations are frequently the most alluring, and not seldom are the means which induce the teacher to accept a walk in life where the direct compensation would render the calling barely tolerable; but both compensations may combine to render it tolerably bearable. In other words, I believe that it is the love of the work that keeps our best material in the ranks, for teaching cannot yet be properly considered a profession whose emoluments can make an average comparison with the more thoroughly organized professions.
Among those things that appeal to the average true teacher, apart from his salary, and which are the indirect compensations that induce him to enlist in the work, and once enlisted to remain, may be cited—-( 1) The leisure found for mental advancement and self-culture; (2) the literary, scientific and general educational atmosphere inseparably connected with the calling; (3) the opportunities for doing good and being of general service to one's race, which are nowhere more directly presented than in this field.
These are some of the consolations offered to the man who sees his boyhood’s associates, probably less favored mentally than he was, leaving him so far behind in the race for wealth and fame that he becomes but a spectator.
Business speculation, mining, railroad building, law, medicine, and special scientific fields all seem to offer more allurements, when viewed as to wdiat others have accomplished through them, than does the occupation of teaching, and one is prone to console himself with the view that possibly there is something better in the life described by the many-tongued bard, when he said:
“But this, our life, exempt from public haunt,
Finds sermons in stones, books, in running brooks,
And good in everything.”
But these questions will not down with all: 46 Is this sufficient? Ought we to meekly accept this? Should we pay such a heavy financial penalty for this our resignedly accepted view of this ideal life — if it be an ideal life, of which we do not feel very sure, after all?”
This skeptical and somewhat rebellious turn of mind is perhaps not so reprehensible after all. It is the spur that often preventsPROCEEDINGS OF FIRST BIENNIAL SESSION.	41
our ambitions from lagging. Tt is “that divine discontent which urges on to better and higher things.*”
o	o	o
Major Robert Bingham, of North Carolina, struck the key note of this idea when, in an address before the department of superintendence of the national educational association, 011 6 6 The Educational Status and Needs of the New South," he graphically depicted the contrast between one of the most favored spots educationally of our country, with one of the least favored. He said: 64111 ad-
*
dressing associations of teachers in North Carolina, I have used the following facts: With nothing in the heavens above, the earth be-neath or the waters under the earth to build a prosperity upon, the people of Massachusetts are the richest people in the world. The country produces nothing but granite and ice; and yet I was told that the average per capita wealth of Boston is over $1,700, and of the whole state over $1,000; they have the best inter-communication in the world, the greatest distance from a man’s house to a railroad station in Massachusetts being 10 miles, and the average distance not being over three miles; and they pay the highest per capita school tax in the world; and thus it becomes us to find where the secret of this Samsonian strength lies. And when some one said I was turning Yankee, I went 011 to say that I had seen other
o	'	J
things. I saw a free school-house built'with tax money that cost $750,000; I saw the names of 100 free school teachers, head masters of the Boston schools, who get nearly $4,000 salaries each; I saw women (there are about 100 of them in Boston ), free school teachers who each get $2,800 salaries. Now there are, I said, 350 teachers present, and you know that you do not get an average of $25 per month, and you don't get that for more than four months in the year; and you know further, that if you could superinduce a set of conditions under which the best man among you could have a chance at, a $4,000 salary as a free school teacher, $1,000 more than outgo vernor gets, and the best woman among you a chance at a $2,800 salary as a free school teacher, $300 more than our chief justice gets — if you could do this you know very well that you would all turn Yankees, unless you are idiots.”
Teachers of the State of Washington, let us be thankful that, we are so far in advance of the parsimonious and poverty stricken educational system of North Carolina, and let us hope that we are fast approaching the liberal system of Boston. But we have much42
CONVENTION OF COUNTY SUPERINTENDENTS.
work to perform in this state before we shall have reached that point attained by the old Bay State.
The first stage to be taken in the forward march is a long one, and includes many intermediate steps. The refrain of this march is, 66Deserve success and you shall have it." If no stone is left unturned, if every opportunity for self-culture and the exercise of administrative ability is improved that presents itself, it then only becomes a question of time. Let our motto be 46 Semper paratus ’ ’ — always prepared.
“ There is a tide in the affairs of men Which taken at the flood leads on to fortune;
Omitted, all the voyage of their life Is bound in shallows and in miseries.”
And after quoting that ancient phrase one feels that the sequel of it from the world’s same master naturally follows:
“ ’ Tis not in mortals to command success,
But we’ll do more, Sempronius,
We’ll deserve it.”
Four thousand dollar educational positions are not yet plentiful in the State of Washington, but who dare say they may not yet be? It depends in no small degree upon the teachers themselves.
The second step to be taken toward remedying the always tardy recognition by the public, of obscure merit, may be found in organized effort. A successful start has been made in this line in Spokane county. At the November meeting of the Spokane county teachers’ association, a voluntary organization of over 100, meeting quarterly, a preamble and resolution were adopted and signed, by which all agreed not to teach for less than $50 per month, and deprecated the practice occasionally found of underbidding for positions.
These sentiments were considered so admirable that they were substantially incorporated in the resolutions adopted at the last state teachers’ association.
Less than six months have elapsed since this start was made. What are the results? At that time from among over 100 districts outside of Spokane, only 16 were paying $50 per month or over. Now the proportion is so far turned the other way that less than half a dozen districts in the county now pay less than $50 per month, and none less than $40, where they formerly paid $30, and they are doubtless doing it for the last time. The public generally admit the justice of the movement and school directors bow grace-PROCEEDINGS OF FIRST BIENNIAL SESSION.	43
\
fully to the inevitable and respect more than ever those teachers who have shown disposition to respect themselves and their calling. Schools in the meantime continue in session throughout the country averaging five months to the year, and show 110 tendency to a shortening of term 011 account of rise in wages. The school © © officers are being readily educated to the point where they are ready to believe that if a teacher is not worth $50 per month he is not worth anythin o’.
J	n
In this connection it is interesting to note the average wages
paid teachers in neighboring states; and, by the way, if the wages
outside of the cities be alone considered, the Pacific coast group of
states, with the exception of Oregon, pay better wages than any
other section of the country. California and Nevada take the lead
%/
both in monthly wages and length of term, the annual terms aver-aging above eight months and the average wages ranging above $80 for men and above $65 for women. Arizona, Colorado, Montana, Idaho and Washington follow in the order named, the latter with average wages of* $51.41 for men and $43.31 for women, as shown by the statistics of 1890. This is more of a decided step forward than the advance of $3.75 for men and $3.64 for women, over the average monthly wages of 1889, would indicate; for the
O	o
reason that the length of term is increased somewhat, thus giving not only a marked addition, but a multiple to annual wages; and, by the way, length of term constitutes a verv important factor in
%j	%)	*	a?	%/	1
the question of wages.
It is sincerely to be hoped that our legislative committee of this convention will not rest until they have fully impressed upon the minds of our coming legislature the importance of a minimum school term of six months each year instead of the present three months term. The recent amendment to the law allowing the voters of a district to decide wliat shall he the minimum length of the term above three months, is a step in the right direction.
Another feature that should receive the attention of our legislative committee in this connection is that of the salaries of county superintendents. The net income from this office in the fifteen largest counties in the state, if all circumstances be taken advantage of, ranges from $1,000 to $3,000 a year; but the nineteen smaller counties do not yield sufficient income to justify a man giving that office his entire attention.
The prospects of Washington, educationally as well as otherwise,CONVENTION OF COUNTY SUPERINTENDENTS.
are undoubtedly grand. Good wages will insure good teachers;
J o	<	o	y
good teachers will insure good schools. rrhe rewards of the profession in the state will undoubtedly be such that the best men will not be forced into other and more lucrative callings.
CP
Prosperity is frequently infectious. Let us hope that ere many years such educational centres as Massachusetts now is, and as Washington will be, will become the radiating points from which the educational enthusiasm will spread until the dark spots of illiteracy, both north and south, shall be erased, and our solid cordons of states will present an unbroken front of universal popular intelligence.
The question arose as to how teachers* wages are to be kept
0
up. Discussed by Superintendents Pusey, Hellen, Martin, Morgan, Johnston, and others. Superintendent Stewart thought that there must be a good fund provided before good wages can be paid. Superintendent Lafferty gave it as his observation that in most districts where finance is weak, their funds are supplemented by a special tax. It was urged that each county superintendent make it a point to endeavor to have the county commissioners levy a better school tax.
«y
Superintendent Bean favored the maintenance of the best wages possible, and argued that teachers of merit will get honest pay for honest work.
Superintendent Bryan suggested that county superintendents should urge county commissioners to levy more tax for school
C	t	i
fund than heretofore, as a general proposition.
Superintendent Turner declared that he was emphatically in favor of teachers uniting for the purpose of keeping up wages.
A paper was then read by Superintendent B. H. Dixon, on “The youth of the land, the heritage of the state — the county
tJ	«.
superintendent an important factor in educational reform," as follows:
DIXON’S PAPER.
In the ancient time, when the patriarchal system prevailed throughout the world, the youth were the subjects of the earnest consideration of their elders. Afterward, when society developed to that extent that there existed a focal point of governmental authority, and when the presumed authority of the patriarch wasPROCEEDINGS OF FIRST BIENNIAL SESSION.
45
limited to the demands of the king and his courtiers, the youth received a special consideration under the direction of the royal dignitaries.
In order to sustain the kingly authority, both in event of the insubordination of deputies and the hostility of neighboring potentates, the youth were trained in the arts of chivalry and war. The unrestrained, revengeful tendencies of the race made national existence a question of military prowess. Hence, to give the youth a military education at the expense of the state was regarded as the all-essential requirement, not only as a national protection, but as an individval assistance. The Greeks and Romans recognized
CD
the importance of educating the youth — first, in the arts of war, and second, to some extent in the then known branches of literature and science.
But the conceptions which we have of civilization demands that the individual citizen possess a much higher standard of technical knowledge than that possessed by his ancient progenitor. The adage that “Knowledge is power" was never so fully and universally recognized as at the present day. Men are promoted to positions of honor and trust largely 011 the merits of proficiency in the various lines of knowledge. The sword and the spear have been beaten into plows and pruning hooks. Men have at last concluded that the arts of peace are greater than are those of war; that conciliation and compromise are better than revenge and retaliation; and, in short, that “there is nothing: oreat on earth but
'	'	'	CD CD
man, and nothing Great in man but mind/'
Admitted, then, that a scientific and literary education is un-measurably superior, in our day and age, to a purely military education, and that the standard of good citizenship is largely based upon the individual's possession of such, does it not logically follow from general standpoint that the state, regarded in the sense of a dignified abstraction, should be responsible for the education of those citizens? Should there, then, be any discrimination because of the financial condition or location of those children? Would a father be considered right minded or just who would willfully bestow all favors upon a part of his children to the exclusion of the remainder? The kind and indulgent father would readily distribute his gifts and bequests among his children equally and impartially. Comparative isolation of individuals should not nec-46
CONVENTION OF COUNTY SUPERINTENDENTS.
essarily cause the children of those individuals to be denied the advantages of an education.
Let us follow the pioneer, he who leaves the over-crowded east in order to secure a foothold for himself and family in the far-famed west. lie is in quest of some “happy spot” which he can call his own. He enters the primeval forest of Washington. Heroically he labors to build up a home. He has brought order out of chaos. He has produced a magical creation. He has produced permanent wealth where none previously existed. It is a shame upon the State of Washington that she possesses representatives who have stood in our legislative halls during the past session of our legislature, and have there brazenly stated that our pioneers, such as I have here portrayed, should not expect educational advantages for their children.
Is there any reward for worth and excellence?
The individual named has, during the time named, been contributing to the wealth of the state, and the centers of commerce and capital receive a lion's share of his wealth. But has the state duly reciprocated? The individual’s children have been denied
J-
even ordinary educational facilities. They have possibly grown up comparatively ignorant of books. Why? Because the state is a
1	%) CD	J
partial educator. While these heroes of the forest are, with trojan efforts, building up a country and contributing to its general wealth, and especially to that of the cities, their children remain comparatively unremembered.
Is it not enough that a levy of tribute should be extorted by the trust railway and capitalistic kings of this country from the bone and sinew of the nation, and not that it should extend to the very threshold of intellectual life and activity? The progressive tendencies of the race are largely circumscribed through this evil.
Dr. Samuel Johnson wrote, “Slowly rises worth by poverty oppressed.” James G. Blaine has said that the most important product of the country is intelligent, learned men and women.
That the state should take particular charge of the children within its limits, is an economic policy in a political sense. “Light-begets light.” The greater the number of educated people there may be in a nation, the less will be the number of criminals. General T. T. Crittenden says, “Parsimony toward education is liberality toward crime/'PROCEEDINGS OF FIRST BIENNIAL SESSION.
47
Tt cannot be said that the children in the outlying frontier districts do not possess natural ability or talent worthy of cultivation. That illustrious trio, Lincoln, Grant and Garfield, all first saw the light in a rude log cabin. In the face of this individual circumstance, without citing any other, it is evident that natural talent is not alone confined to the great centers of trade.
It is not education that a nation needs, but universal education. In Russia exist colleges and universities of the highest order, but the masses of the Russian people are in abject ignorance. To educate a few is simply an unjust discrimination.
A corner may be placed upon any commodity which is the product of labor, but when a corner is placed upon education it is time the people should resist. The spirit of oppression still lingers in the world. The manacles of ignorance have always bound the
<—7	%/
masses to the up-building of the wealth and power of the autocrat. It is now high time they were removed.
The county superintendent may become an important factor in bringing about this needed reform, lie has ample opportunity to disseminate those ideas of reform. Taking the advice of Daniel O’Connel, let him agitate, agitate, agitate. His ideas of educational reform should not contemplate too great a change at once. Let him begin first by advocating a county as a unit for the distribution of school funds. Even laying aside for the moment the idea here advanced that the strong districts should assist the weak, and simply adhering to the opposite selfish view of the matter, it would be more just to make a county at least a unit for distribution.
For instance, a county votes bonds to assist in building a railway through its territory. Then the school districts through which the railway might run would, in the event that the district was independent, have the whole advantage of the tax of such railway depots and possibly workshops, which were really built by tlie county as a whole, while the districts not embracing its railway would have no share of such. After gaining the point that the county shall be made a unit for the distribution of school funds so that the poorer districts shall receive approximately the same funds as the richer within the county, then agitate that the whole state, including cities having more than 10,000 inhabitants, shall become a unit for distribution of school funds. Those cities above all, should contribute to the general school fund, not alone because the state48
CONVENTION OF COUNTY SUPERINTENDENTS.
should educate her sons, but for the reason that they possess the tribute exacted from the general people by their operation of corporations and capitalistic enterprise.
Moved and carried, that topic No. 10 be discussed.
Discussion opened by Supt. Turner. Mr. Turner said that the rules governing examinations are unsatisfactory, but that greater frequency is not desirable. Pie assailed the regulation that requires applicants to write and analyze mental arithmetic problems, and said that words spelled two different ways should be left out of the lists of test words. He said that 50 credits, instead of 100 credits, should be the standard for Mental Arithmetic, School Law, U. S. History and Constitution, and State Constitution.
Discussion continued by Supt. Egbers.
Supt. Bean suggested that an extra subject be added to the list of teachers’s requirements, entitled “form" — such as spelling, folding papers, etc.
State Supt. Bryan said that the language used by applicant should have a great deal to do with the grading of papers.
Supt. Morgan contends that if applicants know a thing they are able to write it. out on paper; also, that technical reading should be marked very closely.
Supt. Pusey asked, if where an applicant fails to pass at any examination, should he have an opportunity at a subsequent examination to make up on the branches on which he failed, or should he be required to pass on the whole list again? The decision was, that it is permissible under the law, but that it should not be encouraged as a general proposition.
Moved and carried to adjourn until 1:30 p. m.
AFTERNOON SESSION.
Convention called to order by the chairman.
Moved and carried, that the convention conclude its work and adjourn with an evening session.
Moved and carried that Supt. Morgan take the chair as vice chairman, in the necessary absence of Supt. Bryan.
Supt. Morgan asked whether or not an applicant, who failsPROCEEDINGS OF FIRST BIENNIAL SESSION.
49
to get anything in any one branch, but has a sufficient number of credits to make the required average, could be granted a certificate ? Supt. Bryan thought that the granting of a certificate under such circumstances should be determined by the character of the branch in which he failed. If it were an unimportant branch, such as School Law, yes. •
' «/
Moved and carried, that topic No. 13 be taken up for discussion. The discussion was opened by Supt. Lafferty, who said that he believed in the examining boards'of every county indorsing certificates from other counties. Moved and carried, that topic No. 13 be indefinitely postponed, owing to the absence of Supt. Bean. Supt. Egbers then read an exhaustive paper on “Compulsory Education," as follows:
The subject is not new, and what I have to say may be vastly older. Since I am not a constituent of a law-making power to-day, having no voice as to what shall or shall not be law, I can do little more than say what I think ought or ought not to be law in certain cases. To my hearers I can scarcely hope to say anything new on this subject, but so long as there is no law compelling all children between certain ages to attend, and regularly attend, school for a certain period each year, I believe that what has been said should be said again if there is any emphasis in repetition.
I believe there is an old maxim which, in simple terms, would be something like the following: “You can lead a horse to water but you cannot force him to drink.”
How very true, and yet how many horses there are, and even wild colts, that would drink were they but led near enough to the trough so that they could see the water and know that the trough did not contain vinegar; yes, and horses that never would drink if left tied up in the stable.
How many indifferent parents, think you, would send their children to school did they but know what there is in the schoolroom for their children? Many children would be sent to school that now seldom see the inside of a school-room; children who would drink deep at the educational fountain that never will drink so long as they are tied up at home.
—450
CONVENTION OF COUNTY SUPERINTENDENTS.
Now, since there are many parents almost entirely ignorant of the wealth in store in the school-room for their children (and that too, simply because they have not had school privileges themselves), is it right that children should grow up without tasting the sweets and enjoying the advantages of a reasonable stock of knowledge, simply because their parents were unfortunately born at a time
♦
when, and in a place where, education was not compulsory? Knowing (as all in my presence do know) that “education is wealth” and that “knowledge is power,” would it be selfish of you to say “my neighbor’s children shall have an education?” It seems to me that you would be giving expression to a most generous spirit. It is as much as to say “my neighbors children as well as my own shall be heirs to wealth too great to be expressed in figures; heirs to power which many kings do not possess.
Contrast with such a generous law as a compulsory education law would be, a law compelling all men to serve a certain number of years in the army in time of peace.
Is there any similarity? And yet some people claim that a compulsory education law would not be in harmony with American principles. I say that it would insure a perpetuation of American principles and American liberty. Just as long as there remains a class that can neither be reached by, nor brought under the influence
J '
of, our public teachers, so long will American principles be exposed to the demoralizing and degrading influence of ignorance, which is the seed of anarchy and rebellion.
In some countries men are compelled in time of peace to serve a certain period of time in the army, which is a loss of so much time to the individual and an expense to the government.
Contrast with those countries a country which compels all children to attend school a certain period of time, which is a clear gain both to individual and government. The individual has obtained an unexhaustible source of wealth and power, the government a better and more intelligent citizen.
I am not altogether ignorant of the objections, or at least some of the objections, that are offered to the compulsory educational law.
One says, “my child is my only means of support, I can not spare him.” Another says, “ a man has a better right to say what is best for his child than the state.” Another, “ that the authorityPROCEEDINGS OF FIRST BIENNIAL SESSION.
51
and sole right to say what the child shall do belongs to, and is inherent in, the parent/1
Now, is the latter true? Why should it be true in one respect more than in another? How many parents would teach their children to steal and commit murder if there was no penalty attached to such crime by the laws of our land?
How many parents would teach their children deceit and dishonesty if the law did not punish the practice of dishonesty?
How many parents do not teach their children anything to make them independent, simply because there is no penalty for not teaching them or having them taught?
Now, we may admit that a parent should have the right and privilege to say what is best for his child; but who should have the right and privilege to say what is best for the state or the people at large in the state? Who should have the privilege to say what is best for the welfare of the people?
There is 110 question about it. There is a law-making body, the constituents of which are, or should be, our wisest and best men. There is 110 question as to whether they have a right to make regulations relative to matters which so vitally affect the welfare of the state as the education of its people.
I say the parent has the right, and if a compulsory educational law was enacted he should still have the right to say what is best
o	j
for his child so far as it affects the child alone, but in matters which affect the people in general, the state must say what is best.
Then what can be done in case of the parent who is dependent upon the child for support? The state or county can well afford to feed the very exceptional few who are thus dependent, for it is not, as a rule, the poor who fail to give their children school privileges; but how often, O, how often, have you noticed children growing up without the advantages of a schooling and with 110 kind of employment at home, simply because their parents are reasonably well off and can support them without giving them employment. And how very, very happy those parents are that their children do not have to work and slave as so many other children do.
I will say just here that if there is to-day, upon the face of the earth, an unfortunate class of beings, it is this class of children who are starving for the want of employment, mental and physical.52
CONVENTION OF COUNTY SUPERINTENDENTS.
No wholesome employment for mind or muscle, how soon must they starve to death?
If a class enjoying but one of the two kinds of food (mental and physical) is unfortunate, what is the state or condition of the class that enjoys neither?
They are to be pitied. They need help. But do you think that man or child lives who is entirely unoccupied, mentally and physically? I say no; and if a man is not employed in something which will redound to his good and to the welfare of his country, he is apt to be employed in something from which he will reap damnation to his soul and destruction to his country; so that if you do not provide for the child healthful employment, it will find employment for itself, and generally not the best.
A compulsory education law would give healthful mental employment to thousands of children who will never be able to cast an intelligent ballot without it.
There is a class of parents who do not like to send their children to school because their children do not like the teacher. Oh, no, it would never do to send them to school against their wishes, because they might take such an aversion to the school-room that they would never, during the remainder of their school years,
J	'	CD	*/	j
take any interest in learning. They think that children must be
CD	%J
very anxious to go, otherwise their schooling would do them 110 good.
The very reason some children do not like to go to school is because tbey are sent to school. They go when they please and stay at home when they please.
The reason some children don't like the teacher is, because at home there is 110 employment provided for them, and it is much nicer for them to choose their own employment, studying mischief which, though innocent at first, leads to something more serious and harmful in after years. I have noticed that teachers, with liarclly an exception, are well liked by children whose parents send them to school resrularlv while they do send them, and have some
CD	«/	c/	'
useful employment for them at home when not attending school. The school-room is always pleasant to such children.
Then again, it depends very much upon what a child eats as to what it relishes. The copper-colored natives of America prefer a well stuffed puppy, with hair and other trimmings left on, to aPROCEEDINGS OF FIRST BIENNIAL SESSION.
53
slice of nice roast beef, for the same reason that a child prefers idleness to attendance at school. The Indian has been fed on puppies and similar dishes, such as grasshoppers, snakes and buzzards. The child has been fed 011 ignorance and similar. dishes, such as idleness, profanity and pride.
So, in order to relish a dish, though it may be unpleasant at first, we must persist in eating it; and we should persist in eating that which we know to be best for health and growth.
Children do not always know what is best for them to eat, and most of them, if left to choose for themselves, would confine themselves principally to doughnuts, mince pies, sugar, colored candies and raisins, to be eaten when desired during the day; but a wise parent would insist 011 the child’s using less of such trash and more of bread, milk, meat and other wholesome articles of food at regular intervals of time.
And so 1 believe a parent should insist 011 a child’s using wholesome mental food. The child will acquire an appetite for the best mental food, just the same as a child will acquire an appetite for bread. But how many parents permit their children to eat any kind of mental food, and eat it whenever they want to.
The state should make some regulation in this matter. If we want to perpetuate our form of government and the free institutions of our land, we must not only provide for and support our public schools, but we must see that they are attended and regularly attended by all classes.
We must see to it that the rising generation is fed 011 intelligence, industry and patriotism, not allowing any to fare 011 indolence, profanity and rebellion. In my mind there is but one way of reaching all, and that is by means of a compulsory educational law.
Nobody thinks it unreasonable that all classes are taxed for the support of the public schools, and why should any one think it unreasonable to compel the attendance of all.
(I say nobody thinks it unreasonable that all are taxed for the support of schools because the few who do think it unreasonable take up so little soul space that you can hardly call them anybody.)
I think there is no reasonable objection that can be offered to a compulsory educational law, and there is 110 doubt that it would be a success. The only doubt of its success is suggested in the maxim first quoted, “You can lead a horse to water but you cannot force54
CONVENTION OF COUNTY SUPERINTENDENTS.
him to clrink.” But for all that, who is going to say that you should not lead a horse to water, especially when there is a fence between the horse and the water.
I think it would be better to say that you can lead a horse to water and he will be very apt to drink, but when there is a fence between the horse and the water if you do not let down the bars and lead him to water he never vrill drink.
If children are sent to school, they will be very apt to learn. If there be an insurmountable wall between them and the school, how can they be expected to learn? These walls are built of ignorance, indifference, love of money, and a very, very few are—yes, built of poverty.
%
There is one thing that can tear down these walls so low that all children between the ages of seven and fifteen can step over to the school-room, and the very means which can tear down these walls can also provide for the few indigent parents and children.
I believe that the influences of the school-room follow a man from childhood to the grave; and if all could enjoy the benefit of that influence, we would be even a happier and a wiser people than we now are, with 110 fear of anarchy and rebellion.
Did you ever know a man to regret that he had attended school so much of his time during youth? On the other hand, how many have you known to regret that they attended school so little during their youth?
If the influences of the school-room are what they should be (and in most cases I believe they are), there is no reason why all children should not attend school. As a rale there are few immoral characters among educators. Among our public school teachers there should be none. Speaking for my own county, I believe I can truthfully say that there is not an immoral character among the teachers. This I am happy and proud to be able to say, although it is nothing to boast of since it is my sworn duty, as well as that of all who belong to the fraternity of superintendents, to see that no person of an immoral character is in possession of a teacher's certificate.
While, as I have just remarked, immoral characters are very rare among educators, yet it stands us in hand as superintendents to see that the sheep-skins all contain sheep. Let us keep the best and purest characters as examples before the youth of our land.
There is another question in close connection with my subjectPROCEEDINGS OF FIRST BIENNIAL SESSION.
55
which I think would be very appropriately considered at this point, and that is, 66 What can be done to promote a more regular attendance?”
I am going to say something about this which many of you may consider a radical assertion, but it is not a sudden impulse of thought that impels me to make the assertion. It is after careful reflection that I am ready to say that, to begin with, every person in a school district should know exactly the to begin; besides which, he should know the exact length of the term to be taught.
©
You will all be ready to say there is nothing radical about that, and perhaps some think it of little importance, and yet I have known schools to begin when some residents of the district had no notice of the fact whatever, much less did they know about the length of the term to be taught. Nothing would be easier than
~	~	o
for a school board to give twenty days written or printed notice, setting forth the day on which school is to begin and the length of term to be taught. Remarks. Exception.
Having due notice of the day on which school is to commence
*■
and length of term to be taught, the parent or guardian can then lay out his plan and make arrangements for sending his children to
school. Each child should come with a written statement from the
i
parent, setting forth the time during which the child is expected to attend, and whenever the child is absent within the time required by law for his attendance (say three months each year) the parent or guardian should be fined for each day’s absence for any other cause than sickness.
After the child has attended regularly during the term required by law, then he should be suspended for absence for any other cause than sickness, and not allowed to return until the parent or guardian has paid a fine for each day's absence. The fine should be one dollar for each day's absence; then if the child’s services at home are not worth a dollar per day he will be in the school room earning several dollars per day, besides growing into a better neighborhood and citizen.
Now, this proposed fine you may call a radical proposition. Let us give it a little further thought. Who will say that the child is not earning a dollar each day he attends school? Who will put the benefit received by the child at less than five dollars per day? Who will attempt to reckon the benefit in dollars and cents? Is it
day on which school is56
CONVENTION OF COUNTY SUPERINTENDENTS.
not robbery to deprive a child of a single day’s schooling unnecessarily? A dollar is 110 consideration compared to the benefit of which a child is robbed in the unnecessary absence from school for a single day. It is nothing more nor less than a crime to deprive a child of schooling unnecessarily, and why should it not be punished the same as any other crime? “A dollar a day” fine is 110
tj
punishment at all, comparatively. Other crimes less felonious are punished by imprisonment and heavy fines.
There are many parents who would hold up their hands in horror at the thought of robbing their darling boy of a few pennies in money, yet they will feloniously rob him day after day of that which is not only money, but far more than money to the child. Yes, these parents would consider it a crime to rob their child of money, yet hear this expression from that master mind, “Who steals my purse steals trash.” What must we say of these people? Do they stop to think?
How many children are kept out of school when their services at home are not worth ten cents a day? These are serious thoughts.
J	CD
The question may now be asked, How are you going to punish willful disobedience and other misdemeanors since pupils are compelled to attend so many months in the year? You may say we cannot expel for disobedience, otherwise the compulsory law would be futile. I say we don’t want to expel for disobedience but to comp'd obedience.
Of course you want to know how it is to be done. Well, Til tell you now, that I would not do it with a hand-spike, nor a horsewhip, nor even with an innocent little switch. My plan would be to suspend a pupil for sufficient cause for at least one day, allowing him to return whenever the parent had paid a fine of one dollar for each day’s absence. I think if a law of this kind should be enacted in connection with the compulsory educational law, that parents would give their children a little good advice before sending them to school and perhaps would caution them, occasionally, about the consequences of misdemeanors committed at school instead of telling them yarns about the tricks they played when they went to school, and how they “licked the teacher," etc.
So you see that I don’t believe very much in corporal punishment. To tell the truth, I don't believe in it at all; however, under the present law, I sometimes resort to it whenever I am satisfied that a moderate dose will be sufficient. I think the parent shouldPROCEEDINGS OF FIRST BIENNIAL SESSION.
57
be responsible for the child's conduct at school, and if there is any corporal punishment to be inflicted the parent should be the one to inflict it.
Whenever our school laws make the parent responsible for the conduct of a child at school, the teacher will be relieved of half the load which he now has to bear. There would be 110 occasion for accusing conscientious teachers of partiality and 110 chance for impartial teachers to abuse their authority.
As a matter of course, the teacher must be responsible to some one for his action in case of suspension. He should be required to make a written report to the district board of each case of suspension, setting forth the cause. Should any parent feel aggrieved at the action of any teacher, he should be allowed, 011 request, to see the teachers report. If he be not then satisfied, the directors should make an investigation, and whenever it is their unanimous opinion that the teacher has abused his authority, he should be subject to dismissal.
It is my opinion, that besides paying the one dollar fine, the parent in most, if not all, cases, would send the pupil back to school with a better lesson than the teacher would be able to give.
Under the present law a pupil may be suspended for continued and willful disobedience and other misdemeanors, and afterward expelled. Now, in the first place, few if any pupils are going to be disobedient 01* troublesome except the very ones that don't like to attend school, and as a general rule the parents of these children are indifferent in regard to whether or not the children go to school;
“	o	7
so, you see, the present law just makes a hole through which the very pupils most in need of schooling can get out of it. These are the ones we want in school. They are the sprouted seeds of anarchy and rebellion which, if taken in time, may be pruned and grafted to bear precious fruit for their country.
Who has not seen fruit growing on a tree whose root and stem are that of a thorn tree? Thousands of children now being robbed of every chance of an education, and destined to go through life utterly dependent 011 the integrity of their more fortunate neighbors, if placed under the direct influence of our schools, would become patriotic leaders, helping to build up instead of tear down American principles of liberty and freedom. If there is any one thing more productive of disinterest and more discouraging, both to the school and to the teacher, than irregular attendance, then I58
CONVENTION OF COUNTY SUPERINTENDENTS.
have failed to discover it. I have seen schools dwindle away, classes broken up and pupils becoming discouraged, some because they were so far behind and others because Jthey were so far ahead that they were in a manner alone, with no competition, teachers discouraged and losing ambition, all on account of irregular attendance.
I have often noticed that a teacher, weak in government, wTith little talent and less tact, will have a good attendance, while other teachers who are wide awake and energetic, with good government, good talent and tact, who make their school-room a hive for working bees instead of a resort for drones, will have a poor attendance. I would rather see a law7 enacted compelling regular attendance without regard to the length of term to be attended, than to see a law enacted simply compelling attendance for a certain period of time each year, without regard to regularity, because a pupil can attend one day and be absent two days throughout a term or year and still be considered in attendance, provided he brings an excuse for necessary employment, which he can always get from a parent who thinks more of ten cents in his own pocket than he does of the child's future life and prosperity.
I believe that a compulsory education law is what we need to make our school system more nearly perfect. I think that it should compel not only attendance, but regular attendance and punctual attendance.
Regularity and punctuality insured, the battle is more than half won. I would rather a child of mine would attend school regularly and punctually three months in the year, than to attend every other day for a year.
If I wanted a child of mine to become disgusted with the school
o
and the teacher, I should allow it to attend just whenever it pleased, with 110 regard to the teachings of example and observation.
Irregularity and tardiness are two of the greatest enemies to the prosperity and effectiveness of our schools.
Now, what can be done to insure punctuality and regularity of attendance? There is one thing certain, and that is that regular attendance of all classes will never be brought about except by a compulsory law of some kind.
I believe I have at least said enough to introduce this subject. I should be glad to hear of some other plan than that of imposing a fine. There may be a more desirable plan, but will it be as effective?PROCEEDINGS OF FIRST BIENNIAL SESSION.
59
Moved and carried, that topic No. 13 be resumed by Superintendent Bean, who said that lie found it necessary to indorse certificates between examinations, but did not favor the indorsement of certificates for full time, and gave as his reason that his county has been imposed upon by certain teachers going into other counties where the examining boards were more liberal, and securing certificates only to return to their own county to have them indorsed for the full term for which they were granted.
Superintendent Brooks favored general uniformity in indorsing certificates from other counties.
Superintendent Johnson didn't favor indorsing certificates from other counties.
Superintendent Morgan criticised the idea of raising the markings of applicants in order that they may pass, as set forth by Superintendent Bean.
Superintendent Lawrence opposed the indiscriminate indorsement of certificates from other counties for the full term for which they were granted.
Superintendent Berry favored the idea of subjecting teachers to examinations in the county in which they propose to teach.
Moved and carried, that topics 12, 14 and 1(5 be taken up for discussion.
Superintendent Turner opened discussion. He said that he considered it a violation of the law for a teacher to teach when not holding a certificate in force.
Superintendent Bean thought it excusable under certain circumstances, especially when teachers are scarce.
Superintendent Brooks gave it as his experience that in some cases the practice is absolutely necessary to supply the demand for teachers.
The following committee was appointed by the chair to consider and report upon a communication from the Washington Secular Union:	Superintendents Brooks, Johnston, Woods,
Egbers and Benbow.
The question was asked, “What should be done with the60
CONVENTION OF COUNTY SUPERINTENDENTS.
money left to the credit of districts that fail to have school and become disorganized?" The decision was that it should revert to the general county school fund.
O
Moved and carried, that topic No. 8 be taken up for discussion. Superintendents Benbow, Turner. Bean and others discussed it at length.
Superintendent Morgan favored the plan of requiring the state superintendent to prescribe forms, etc., for records of school officers. Superintendent Fansher also favored the idea.
Moved and carried, that the state superintendent be requested to confer with the state printer, and ascertain the probable cost of a uniform set of record books for county superintendents and district officers, so that each county superintendent may present the matter to his county commissioners in May.
Have superintendents a right to teach without a certificate ?
The chair decided not.
State Superintendent Bryan decided that deputy superintendents' acts are as binding as those of the superintendent himself. Also, that a superintendent has a right to correct any error made by his predecessor. Further, that the people of a district could not invest the board of directors with the power of selecting a school-house site; that it must be selected by a vote of the people.
Moved and carried, that the convention adjourn until 8 p. m.
EVENING SESSION.
Convention met at 8 p. m.
First was the report of the committee on the communication from the Washington Secular Union, which was as follows:
Your committee, to whom was referred the circular letter issued by the Washington Secular Union, beg leave to offer the following: resolution:
Whereas, Section 11, article 1 of the state constitution of Washington prohibits the use of public money for religious instruction, and section 26, title 6 of Washington school law prohibits thePROCEEDINGS OF FIRST BIENNIAL SESSION.
61
introduction of sectarian or partisan literature into the public schools of the state: therefore, be it
Resolved, That as county superintendents of said state we are in duty bound to enforce said provisions rigidly.
X. B. Brooks, Chairman.
H. C. Benbow.
R. C. Egbers.
G. B. Johnston.
After a brief discussion the report of the committee was laic! on the table. The following report by the committee on form of annual report of county superintendents was adopted:
Resolved, That the county superintendents of Washington will cheerfully make any form of report that the state superintendent thinks will best subserve the interest of education, regardless of the increase of labor it may entail. (Signed by full committee.)
The following resolutions were unanimously adopted:
_Resolved, That we, the county superintendents of Washington, in convention assembled, express our hearty appreciation of the hospitable treatment accorded us by the citizens of the capital city, and for the interest they have manifested in us and our work dur-ing our pleasant stay among them; and that we have reasons for special gratitude to superintendent of public instruction R. B. Bryan, city superintendent B. W. Brintnall, and the officers and teachers of the Olympia public schools, for the excellent banquet prepared in our honor.
Jiesolved, That we shall carry away with us pleasant memories of this convention, and shall recall it as one of those pleasing and profitable events that lighten the tedium of labor and strengthen our hands for coming duties.
The following resolutions were then taken up, considered seriatim, and adopted, as embodying the sentiments and outlining the policy of the convention:
We, your committee on resolutions, do respectfully report the following resolutions as the sense of this convention on subjects discussed during this convention, and do recommend their adoption:
Resolved, f. That this convention seriously deprecates and earnestly protests against the appointment of any person on the state62
CONVENTION OF COUNTY SUPERINTENDENTS.
board of education who holds a lower teacher’s certificate than first grade; and we believe that this office should require at least as high terms of eligibility as does the office of member of a county board of examiners.
2.	That we believe it to be the duty of the county superintendents to enforce impartially, in large cities as well as elsewhere, the use of the list of text-books prescribed by the state board of education.
3.	That in accordance with the advice of the attorney general, the state board of education, in adopting a series of physiologies, should adopt for four years, or for such a time as to produce uniform termination of all book contracts to which the state is a party.
4.	That the section of the law referring to compulsory education should be made more explicit; and that it should be the duty of school directors to enforce the law within the limits of their respective districts, and that suitable penalties should be provided for non-compliance with this provision.
5.	That the salaries of county superintendents in counties of less than JO,000 inhabitants should be increased.
6.	That greater promptness and efficiency is desired among school district officers, and that superintendents may help accomplish this by personal appeal, circulars of instructions, or the convening of district officers’ conventions.
7.	That the present powers and duties of county superintendents, while not materially lacking, should be specifically extended to the inspection of the records of school district officers, and the direction of these officers in the transaction of their official business.
8.	That greater care should be taken by teachers regarding the keeping of records in accordance with the law and the instructions of the state superintendent.
9.	That we recommend the organization of voluntary associations of teachers to meet in each county at not greater intervals than once in three months, for the discussion of school w^ork.
10.	That we recommend that the annual teachers’ institute be increased in effectiveness by the application of all intelligent and progressive educational ideas.
(Superintendent Morgan wished to be recorded as voting “No'* on the 10th.)
11.	That a uniform system of county superintendents1 records be prescribed by law.PROCEEDINGS OF FIRST BIENNIAL SESSION.
63
12.	That all of the county superintendent’s time should be devoted to his official duties, when his net annual income therefrom is $1,200 or over; and that it is illegal for him to teach without a certificate.
13.	That the existing rules for teachers’ examinations need mod-
O	*
ification, and that county superintendents and boards of examiners are requested to suggest to the state board of education such changes as they deem abvisable.
14.	That in the appointment of assistant examiners, the term “highest grade of certificates” should be construed that first grade certificates, territorial and state certificates or life diplomas should rank equally.
15.	That in the granting of certificates from other states or ter-
o	o
ritories, the restrictive clause, “the requirements to obtain which shall not be less than in this state,” should be liberally construed; and that such local subjects as school law and state constitution should not be contemplated by this clause.
16.	That great discretion should be used by county boards of examiners in indorsing certificates from other counties for the unexpired term thereof; but that such a provision, wisely used, is right.
17.	That we unqualifiedly condemn the practice of teaching in the public schools without a valid certificate, either for the purpose of commencing teaching before being qualified by law, or for any other reason.
(Superintendents Morgan and Byrne wish to be recorded as voting “No" on 17th.)
18.	That the annual report of the county superintendents should not only be a compilation of the reports of the school district clerks, but should also embrace the essential facts pertaining to each individual school district.
19.	That we commend to all teachers The Northwestern Journal of Education.
20.	That we recommend a change of the law, whereby the convention of county superintendents be called annually instead of biennially.
(Signed)	W.	B.	Turner, Chairman.
The following preamble and resolution were adopted:
Whereas, The state teachers’ association, at its late annual session in Spokane, appointed a committee to act in conjunction64
CONVENTION OF COUNTY SUPERINTENDENTS.
with the World’s Fair Committee of the state, looking to the proper representation of our state at the Columbian Exposition to be held in Chicago in 1893; and
Whereas, The said committee, acting upon its instructions, have already prepared plans with some pains and labor, looking to such representation: therefore, be it
Resolved, That we, the county superintendents of Washington, in convention assembled, heartily indorse said committee, or such member of said committee as the majority of said committee may select, to tlie executive committee of the World’s Fair Association.
A beautiful farewell address was then delivered by State Superintendent Bryan, after which the convention adjourned
sine die.
L. R. BYRNE, Secretary.
MISS MINNIE O’CONNER, Assistant Secretary.APPENDIX
SYNOPSIS OF OFFICIAL OPINIONS AND RULINGS ON
QUESTIONS OF SCHOOL LAW.OPINIONS AND RULINGS.
BY ATTORNEY GENERAL.
1.	When cities, in extending their limits, take in other districts or parts of districts, and in so doing take in a part or all of the school district officers of such included school districts, the officers so taken into the city district do not become a part of the board of directors of the citv districts so extending their limits.
J	CD
2.	Every teacher must attend the county institute during the entire time it is in session, or furnish a valid excuse for non-attendance. The county superintendent is the sole judge as to whether the excuse of a teacher for non-attendance is valid or not, and the teacher’s appeal from the decision of the county superintendent must be to the courts.
3.	The superintendent of public instruction has the right to review any and all work of a county board of examiners in case of an appeal from their decision.
4.	Publishers under contract to supply text-books for the public schools of the State of Washington, must, during the period of exchange, as provided in their contract, exchange text-books of any kind or grade for those of the same grade, or for those of the grade next lower, at the option of the purchaser, upon payment of the contract exchange price.
5.	The persons appointed by the county superintendent, who, together with himself, constitute the county board of examiners, are officers within the meaning of the law, and should take the oatli of office required by other county officers. There is as much reason why they should take an oath to faithfully perform the duties of their office as for the county superintendent to take the same oath. They act in an official capacity when assisting the county superintendent, and are not mere employes of the county.
6.	Children of school age, residing upon military reservations lying within any school district, constitute a legitimate portion of68
APPENDIX —OPINIONS AND RULINGS.
the school population of the district, and should be enumerated as other children are.
7.	The words found in section 16 of the act of 1891, namely: “The provisions of this section shall be construed to apply to the entire county and not a portion thereof,” do not repeal section 32 of an act approved March 26, 1890. The closing section of the act of 1891 shows that it was not intended to modify or repeal the former act relating to schools in incorporated cities, and the words quoted must be understood to mean that the provisions of the act of 1891 shall apply to the entire county so far as such application is not repugnant to the provisionsof the act of March 26, 1890.
8.	The provision of the revenue law of 1891, relative to the levying of taxes for the support of common schools (see Laws of 1891, sec. 74, p. 309), repeals that portion of section 52 of the common school laws (see p. 31, Com. School Laws; also sec. 16, p. 253, Laws of 1891), which provides that the county commissioners.shall levy an annual tax for the support of common schools, which shall not be less than four mills nor more than ten mills on the dollar. The county commissioners are simply required to levy a sufficient amount to defray the expenses of the common schools, provided that the levy shall not exceed six mills on the dollar.
9.	The reading of the Bible, or any portion of it, in the common schools of this state, during any part of the legal school day, is in violation of the constitution of the state. (See “Opinions of Attorney General,1" p. 142.)
10.	Any person who is the actual head of a family — that is, one who is under legal obligations to provide for the support and education of persons dependent upon him, and who is, in fact, providing for their education and support — is qualified to sign a petition to the county superintendent praying for the formation or alteration of a school district, whether he be a legal voter or not; and a person who is not the head of a family, as above described, is not qualified to sign such petition though he be a legal voter.
BY STATE SUPERINTENDENT.
1.	It is the duty of boards of directors to make all necessary
t/	%>
rules and regulations for the systematic transaction of their official business, and to transact all business as a board, at board meetings.
2.	The notice to be given by the school district clerk, of all meetings of the board of directors, is not a notice to the public,APPENDIX—OPINIONS AND RULINGS.
69
but simply a notice to the members of the board. A failure to give the required notice does not, of itself, invalidate the meeting, provided all members of the board actually attend the meeting, and participate in its transactions. That is to say, the directors cannot attend a meeting of the board and participate in its transactions, and then plead that the proceedings were illegal because of a lack of the notice required to be given by the clerk.
3.	In the absence of any by-law of the board prescribing the manner of calling them, special meetings of the board of directors may be called by the chairman, or by a majority of the board.
4.	A written record of the proceedings of all board meetings must be kept by the clerk. Should the clerk be absent from any meeting of the board, one of the directors must be chosen to act as clerk of the meeting, and he must present a certified copy of the record made by him to the clerk, who must record the same in his record book.
5.	A board of directors may authorize the use of a school house for night schools, or for the meetings of literary, scientific, religious, political, mechanical or agricultural societies, but under such restrictions and regulations as will secure immunity from damage to the school, school property, or to the books or other property of the pupils who may be in attendance. The spirit of the law is, that school houses shall be used for public school purposes, and all incidental uses must be under such restrictions as to result in no injury to the school or to the school property.
(3. Boards of directors and other school officers possess sucn powers as are delegated to them by law, and such other implied powers as are necessary in order to transact all business prescribed by law.
buy real estate for the use of the district, nor sell real estate belonging to the district, except when directed to do so by a vote of the people.
8.	Every school district which fails to maintain a public school during at least three school months within each school vear, for-feits its right to all apportionments of school funds by the county superintendent.
9.	In case a school district shall fail to elect officers at the time and in the manner prescribed by law, the officers whose terms of office expire at the time such election should take place, do not hold over or continue in office until the next election, but the offices
7. Boards of directors cannot lawfully70
APPENDIX----OPINIONS AND RULINGS.
which they hold become vacant, and can only be filled by appointment, as special elections cannot be held for the election of such officers. That is to say, an officer who is elected or appointed to any office for a specific time, 66 and until his successor is elected and qualified,” has no legal claims upon the office for a greater period than that for which he was elected or appointed, and it is the right of the people to demand the appointment of his successor and it is the duty of the county superintendent to appoint him; but should no appointment be made, it is the duty of the officer whose time has expired to continue to discharge the duties of his office until his successor is elected or appointed and qualified, as the law di rects. He is an officer cle facto, and his acts are just as legal as they were prior to the expiration of the time for which he was elected or appointed. His legal claim to the office has simply ceased.
10.	Api >ointments of officers made by a county superintendent do not extend beyond the time of the next annual election.
11.	Joint districts, that is, districts lying partly in one county and partly in another, cannot be formed under existing laws, but all joint districts that had a legal existence prior to March 27, 1890, are recognized as legal school districts, and the boundaries of such districts cannot be disturbed or altered except by the joint action of the superintendents of the several counties in which they lie.
12.	A teacher does not forfeit his certificate by non-attendance at a teachers’ institute, but simply renders it forfeitable in case he has not a valid excuse for non-attendance. In other words, a forfeiture does not and can not exist until a declaration of the forfeiture has been made by the proper authority, which in this instance is the county superintendent. It is proper that the county superintendent should investigate each case and determine whether the excuse offered for non-attendance ,is valid or not. In case it is not, the superintendent should demand the certificate, and upon the refusal of the party to surrender it, should publish the fact that the certificate has been forfeited, and also make a record of his action.
13.	A county board of examiners has the right to withhold a certificate until the fact of a good moral character is established.
14.	In case a teacher is convicted, in a court of justice, of any offense that would justify a county board of examiners in withholding a certificate from him, the county superintendent has theAPPENDIX----OPINIONS AND RULINGS.
71
right to revoke his certificate without further investigation, but
O	*—
where the person is only accused of the offense he has a right to an investigation, at which he may appear in his own defense.
15.	If a county superintendent knows a teacher to be immoral, or to be guilty of any offense which would justify a county board
~	J	J	V	V	%)
of examiners in withholding a certificate from him, the county superintendent should revoke the certificate of the teacher, even though no formal charges are preferred against him. In other words, the county superintendent has the right, and it is his duty as a protector of the people from imposition, to make the charge himself if it is not made by others.
16.	The basis of all apportionments of school funds must be the number of children of school age residing in the district June 1st, and no account can be taken of any who become residents of the district subsequent to that date.
17.	A county superintendent must keep his office open at the county seat, at least one day each week.
j	>	%j
18.	A board of directors cannot dismiss a teacher simply because the teacher is unpopular, or does not give general satisfaction. They must first establish the fact that he is incompetent, or that he has violated the law or the terms of his contract. Neither can boards of directors make contracts that are not in accordance with law.
19.	For the purposes of visitation by the county superintendent, the term “school,” as used in the second subdivision of section 11 of the common school law, and also in section 17 of the same act, is construed to mean a department or room—a distinct collection of pupils under the supervision or instruction of a teacher, though that department, room or collection may be but a part of the system or systems of schools of a city or town. Any other interpretation of the term would defeat the primary object of the law.
20.	All persons between the ages of five and twenty-one years, wdiether married or single, residing in any school district on the first day of June, should be enumerated by the school district clerk, except such Indian children and Mongolian children as are excluded from enumeration by the proviso found in the third subdivision of section 34 of the common school law. The simple fact that a person is married does not debar him or her from the privileges of the common school in this state, under existing laws.
21.	The funds provided for in section 52 of the common school72
APPENDIX----OPINIONS AND KULINGS.
law, may be used not only for the payment of teachers’ wages, but , for paying the expenses of repairs, the payment of rents, the purchase of fuel, crayons and other incidentals, and the supplying of such equipments as are necessary to the successful management of the school.
22.	That provision of section 53 of the common school law (chap. 12, Laws of 1889-90) which requires the school district clerk to certify to the county auditor the levy of special taxes, on or before the first day of September of the year in which the levy is ordered to be made, is not mandatory in regard to the time of making the certificate. That is to say, a failure to make the certificate on or before the first day of September does not invalidate the levy. The county auditor may lawfully receive the certificate and enter the levy upon his books at any time prior to closing them. But a special tax levied one year cannot be certified and entered upon the auditor's books the next year. Any special levy is based upon the assessment of the year in which it is made, and it cannot consistently be based upon the assessment of one year and collected upon the assessment of another.
23.	In the formation or alteration of a school district the county commissioners nave no jurisdiction in the matter whatever, unless an appeal be taken as provided by law.
24.	A county superintendent may lawfully appoint the officers of a new school district as soon as the time for taking an appeal has expired, provided that no appeal has been taken; and in case an appeal shall be taken and his action shall be confirmed by the county commissioners, he should appoint them as soon as the decision is rendered.
25.	When the officers of a new school district have been appointed, and have qualified according to law, the new district is fully organized and possesses all the powers of any other school district, though by a failure to have the required amount of school within one year it may forfeit its organization and cease to exist as a corporation.
26.	The terms of office of all the first officers of a new school district expire at the time of the first annual election succeeding its organization, whether those officers were appointed by the county superintendent or hold their positions by virtue of a previous election in the old district or districts from which the new district was taken. They are only temporary officers in either case.APPENDIX
OPINIONS AND RULINGS.
73
27.	In apportioning tlie funds of a school district that has been divided in the formation of a new district, as provided in section 22 of the common school law (chap. 12, Laws of 1889-90), the county superintendent should not take into account any indebtedness of the old district that was contracted subsequent to the time of the division. The intention of the law is, to secure an equitable division of all funds belonging to the district at the time of the division, or of the funds which shall come into its possession by reason of the property or school children embraced in it before the division; and to permit the old district to claim an offset for debts contracted after the division, would be to defeat the object of the law.
28.	The law requiring a county superintendent to grant temporary certificates under certain conditions, is mandatory, provided that the conditions contemplated by the law are complied with; and the certificate in lieu of which the temporary certificate is granted, or upon which the application is based, need not be a certificate which is in full force and effect at the time the application is made.
Note.-—In the foregoing synopsis of opinions on questions of school law, only the essence or substance of the original opinion is given, the argument or reason for the conclusion being^ omitted. Opinions No. 3 and 4 of the attorney general were rendered orally. In some instances the phraseology of rulings by the superintendent of public instruction has been somewhat changed from that used in former prints, and additions have been made in a few instances, as would render the meaning clearer.
R. B. BRYAN, Superintendent of Public Instruction.University of Washington Library
Date Due
			
/'1			
	£ 7t-,		
	Qj |'{) ui P'd ICT	r* 1 o inns	? 1 ' '
	3u£uD UE»	«i# iyyt	"i •
SUSl	* JUNI	111997	REttt j 4
			
			
			
			
			
			
			
			
			
			
			
			
Lib. 65379.797 W27re

379.797
Wa7re