—* See GG 66666565 SSSSS88 VOL. VIII, NO. 2 MARCH, 1930 Research Bulletin OF THE National Education Association Ga0o00G0GGE8o BEE PY Eon oGuooaoasaae aces aGaaGaacn 0 A Self-survey Plan for State School Systems Part I: Checklists Fisisizizizicizizi sisi 717171 SBSoooesoooooooaoaaoaaas > Gomi cS \ 4 J F~—o? ——$_—__—__—— Preliminary edition PUBLISHED BY THE RESEARCH DIVISION OF THE NATIONAL EDUCATION ASSOCIATION 1201 SIXTEENTH STREET NORTHWEST, WASHINGTON, D. C Entered as second-class matter February 10. 1923. at the Post Office at Washington, D. C.. under Act of August 24, 1912. Acceptance for mailing at special rate of postage provided for in Section 1103, Act of October 3, 1917, authorized February 10, 1923. “2-4 EA A Oa mee i -” in TENE A iia ie cemeti e N a ve Research Bulletin of the National Education Association Published five times each year in January, March, May, September, and November by the Research Division of the National Education Association of the United States. President, E. RutH Pyrte The payment of the $5 membership fee of the National Education Association entitles one to receive the Research Bulletin, the Journal, the Annual Volume of Ad- dresses and Proceedings, and certain other publications of the National Education Asso- ciation for one year. One dollar of each $5 membership fee is for a year’s subscription to the Research Bulletin. The Research Bulletin may be subscribed for separately at a subscription price of $1 per year. Copies may be purchased for 25 cents, and in quantities at a reduced rate. Those entitled to receive the Research Bulletin regularly are asked to report at once any change of address, giving old as well as new address. Entered as second-class matter February 10, 1923, at the Post Office at Washington, D. C., under Act of August 24, 1912. Acceptance for mailing at special rate of postage provided for in Sectio1 1103, Act of October 3, 1917, authorized February 10, 1923. Director of Research: John K. Norton Assistant Directors: Frank W. Hubbard, William G. Carr Executive and Editorial Offices - - - 1201 Sixteenth Street N. W., Washington, D. C. Secretary, J. W. Crantree Associate Director: Margaret Alltucker Norton How to Secure Additional Copies Additional copies of this issue of the Research Bulletin may be obtained at the following prices, postpaid if remittance accompanies order: Single copies of this issue 25¢ 2 to 9 copies—10°% reduction 10 to 99 copies—25°% reduction 100 or more copies—33 1/3°¢ reduction. Orders for Research Bulletins not accompanied by remittance are subject to trans- portation charges. Make checks payable to National Education Association. Subscriptions to Research Bulletins The Research Bulletin may be received regulariy through a special subscription at $1 per year. Only those holding the $5 membership (see statement at top of this page) receive the Research Bulletin without such subscription. Many of the early issues of the Research Bulletin are already out of print. The special subscription at $1 per year offers an opportunity to maintain a complete file of future Research Bulletins. Reproduction of Material in Research Bulletins Electro-mat-slide service: The National Education Association maintains a special service to aid those reproducing material appearing in its publications. Send orders or requests for further information to the Division of Publications. Tables, charts, and any other material appearing in Research Bulletins may be reproduced for the advancement of education. No authority other than this notice is needed previous to such reproduction. For further information on this subject or others affecting the work of the Division, address the Research Division, National Education Association, 1201 Sixteenth Street N. W., Washington, D. C. [ 54] _— a —_ ae CONTENTS Foreword ; How to Use the Checklists How to Continue the Self-survey Four General Cautions Who Can Use the Self-survey? Application of the Self-survey—lIllustrations The Certification of Teachers in California Employment and Contracts of Teachers in Pennsylvania Retirement of Teachers in Virginia Apportionment of State School Funds in Maryland LIST OF TABLES Checklists for State School Systems (Table A Checklist for Attendance Laws and Their Enforcement (Table 1 Checklist for Child Labor Laws (Table 2) a Checklist for Pupil Personnel and Adjustment (Table 3) Checklist for Teacher Training and Supervision (Table 4 Checklist for Certification of Teachers (Table 5). Checklist for Employment and Contracts (Table 6) Checklist for State Salary Laws (Table 7) ; Checklist for Professional Organizations (Table 8) Checklist for Teacher Retirement Systems (Table 9 Checklist for Sources of School Revenue (Table 10) : Checklist for Apportionment of State School Funds (Table 11) Checklist for Material Equipment (Table 12). < Checklist for State Board of Education (Table 13).. ) Checklist for State Department of Education (Table 14). Checklist for Higher and Adult Education (Table 15) Iss] FOREWORD Aime ago Leonard P. Ayres published his Index Number for State Schoo! Systems. Where properly used this Index served a useful purpose but its limits tions have been widely recognized. Ayres himself said of this Index: If some great national agency were to undertake a survey of each of the 48 state school systems, it would surely report on many phases of their work not included in the items of the index. Among such phases would be the legal basis of the system, its organization, professional leadership and supervision, business management, course of study teaching staff, plant and equipment, and the results of standard tests of classroom work. These elements, and others like them, are not directly included in the index, although some of them are crudely measured by the several items for financial expenditures. In issuing 4 Self-survey Plan for State School Systems the National Education Association does not undertake “a survey of each of the 48 state school systems.” Rather, it offers a means whereby many essential features of a state’s provision for education may be evaluated by the people of the state. It includes a wide range of factors which the Ayres Index but crudely or indirectly measured, if it measured them at all. In addition to its breadth of scope this self-survey plan presents three character- istics which make it unique among methods for evaluating the effectiveness of a state school system. In the first place, its fundamental purpose is the improvement of schools in each state, rather than comparisons among states. While the value of such com- parisons is definitely recognized and provided for, each state is to be checked against a series of generally accepted criteria of administrative efficiency. Only incidentally is it compared with the practices prevailing in other states. A second feature of the plan is the principle of improvement from within. It is not contemplated that an evaluation of any state school system shall be superimposed by an outside central agency. The plan is an opportunity, not a verdict. Flexibility is the third outstanding characteristic of this self-survey. Although the plan crystalizes competent opinion it is not presented as the final word on state school administration. While probably 90 percent of the criteria would be enthusiastically accepted by those qualified to judge, it doubtless includes a few points on which full agreement has not been reached. The bulletin is therefore issued frankly as a preliminary and experimental edition. Revisions in the future are contemplated, and suggestions from the field concerning such revisions are invited. As it stands, this self-survey plan is destined to exercise a significant influence on state educational advance during the next decade. It deserves discriminating study and use by both lay and professional groups in every state. J. W. Crastree, Secretary, National Education Association. [ 56 ] 1 UP . to sc tors W cepted tion a points educat they h apprai tions ° their they | prove the p the ec the fF gene! Tl wher citiz cont! weal scho und of t nish pro 7 par sea che sys tio Pa nu tu’ P: sti m of al as ce en7D a A Self-survey Plan for State School Systems Part I: Checklists \UPPOSE A GROUP of eminent educa- tors were asked to appraise your state wR school system. Suppose that these educa- tors the cepted principles of state school organiza- were familiar with generally ac tion and thoroughly competent to discove1 points of strength and weakness in your state’s educational machinery. that they had no other interest than the unbiased appraisal of your school system. What ques- Suppose, also, tions would they raise about your schools and their administration? What they be likely to approve and what to disap- features would prove? What would they say with respect to the provision which your state has made for the education of its children as compared with the provision made by the United States in general ? This self-survey plan provides a method whereby school people and other groups of citizens may make an orderly, careful, and continuing study and analysis of the strong and weak points in the structure of their state school system. Such study will lead to a better understanding of the fundamental problems of their state educational system and will fur- nish a basis for planned and intelligent im- provement. The self-survey plan is published in two parts. Part I, constituting this issue of the Re- search Bulletin, contains a series of fifteen checklists covering various aspects of a state system of education. It also contains instruc- tions and suggestions for using these checklists. Part II will be published as the May, 1930, number of the Research Bulletin. It consti- tutes a handbook for use with the checklists in Part I. The handbook, Part II, discusses the standards implied in the various items which make up the checklists, and cites a wide range of authorities in support of their validity. It also gives some indication of how the country as a whole is progressing towards the criteria composing the checklists. ! The expression ‘‘state school system"’ does not exclude cities. The use of this self-survey for city school systems alone is not feasible on account of the general scope of the districts of all sizes. questions. Most cities at present exceed the criteria proposed for the states as a whole. How to Use the Checklists The fifteen checklists, page 62 to 76, pro vide a method for gathering the necessary basic data for the self-survey. The checklists are not the self-survey. The really important part of the survey begins after the checklists are filled out. At that point in the investigation the su veyor, having necessary data before him, be gins to search out points of strength and weak ness, to attempt to discover the causes for un satisfactory conditions, and, above all, to seek ways and means of improving the situation. Furthermore, the checklists should not be used uncritically. Best results will be secured when they are thoroughly understood. It is the purpose of the handbook to provide the background necessary for intelligent use ot the checklists. The detailed instructions and suggestions which follow should be read be fore the actual work of gathering data for the self-survey is undertaken. a series of The checklists consist of ques- tions concerning the administration of a state school system.' Each question is worded so as to call for an answer of either “‘ves’’ or “no.” The wording of the questions is such that “ves” is, according to the most expert and practical judgment available, the desirable answer. A “no” answer generally, but not always, indicates a fault in the legislative or adminstrative basis of the state school systenr. For convenience the questions are grouped into fifteen topical checklists which include such titles as: attendance laws and their en- forcement, state school revenues, school build- ings and equipment, adult and higher educa- tion. The titles of all checklists are given im ‘Table A, page 58. At the right of each check- list, pages 62 to 76, there are two columns: one headed Yes, the other No. In using the checklists, place a check after each question in either the “yes’’ or “no” column according to the answer which must be given for vout state. The, checklists apply to the state as a whole, including school The educational function of the state, however, is to fix progressively higher minimum standards and to encourage cities and other local jurisdictions to ex eed these standards where possible. [57] “pe oe a m —— ao 2 SE ae Examples. Suppose North Carolina is being studied. The first question in table 1, the check- list which deals with attendance laws and their enforcement, asks “Is an annual or con- tinuing school census on a_ state-wide basis required by law?” Since a continuing school census is required in North Carolina, that state would be checked in the “yes” column after this particular question. Each succeeding ques- tion would be similarly checked either “ves” or “no.’ Suppose, instead of North Carolina, New Jersey were being checked on the same ques- tion. This state does not require a state-wide annual or continuing school census.’ It would, therefore, be checked in the “no” column after this particular question. Each succeeding ques- tion would be similarly checked either “ves” or “no.” Questions which do not apply—Since the checklists are intended for general application, it is possible that a few questions may not ap- ply in a given state. Where this occurs simply write “does not apply” across the two right- hand columns opposite this question. Example. Suppose Utah is being studied reference to table 9 which deals with tea: retirement systems. Question 1 of this check asks, “Is there a state-wide teacher ret ment system?” There is no state-wide reti ment system covering Utah teachers, there! the state would be checked in the “no” co! after this question. The remaining questions as for certain important details covering operation of teacher retirement systems. By; Utah, having no such system, cannot answe; these questions. After checking “no” on th; first question, therefore, Utah would write “does not apply” across the two right-hand columns opposite each question from question 2 on. Questions which call for qualified answers While most of the questions can be answered by an outright “yes” or “no” there will prob- ably be one or two questions for which a state should give a qualified answer. Neither an out- right “yes” or “no” may be entirely accurate. In such cases the questions should be checked in the column which, in the judgment of the user, most closely approximates the truth. 1A committee of New Jersey school people is now studying this problem with a view to remedying the lack of a state-wick school census. TABLE A—-CHECKLISTS FOR STATE SCHOOL SYSTEMS The Child and His Welfare p age Table 1. Checklist for Attendance Laws and Their Enforcement.......... 62 Table 2. Checklist for Child Labor Laws.......................0000005. 63 Table 3. Checklist for Pupil Personnel and Adjustment.................. 64 The Teaching Profession Table 4. Checklist for Teacher Training and Supervision................. 65 Table 5. Checklist for Certification of Teachers......................... 66 Table 6. Checklist for Employment and Contracts...................... 67 Table 7. Checklist for State Salary Laws..................00.000 000005. 68 Table 8. Checklist for Professional Organizations........................ 69 Table 9. Checklist for Teacher Retirement Systems..................... 70 State School Finance Table 10. Checklist for Sources of School Revenue....................... 71 Table 11. Checklist for Apportionment of State School Funds.............. 72 Material Equipment Table 12. Checklist for Material Equipment............................. 73 Administration and Control Table 13. Checklist for State Board of Education......................... 74 Table 14. Checklist for State Department of Education............... ae Table 15. Checklist for Adult and Higher Education...................... 76 1 s8] saint ids Qualifyi space prt amo forn has ther stat coul sala is f atte gov ries Ca che de: pre the In| checkl tions | Readi the cl Aa AN sia. srl Qualifying statements should be placed in the space provided below each checklist. Example. Table 7 deals with teachers’ sala- ries and this is the first question asked: “Are there state regulations governing the minimum amount of teachers’ salaries?’ Suppose Cali- fornia is answering the question. California has no state minimum salary law. However, there is a provision which specifies that all state school funds and sixty percent of all county school funds shall be spent for teachers’ salaries. The minimum amount of these funds is fixed by law in terms of the average daily attendance. In effect, therefore, California does govern the minimum amount of teachers’ sala- ries, although it has no minimum salary law. answer this question by column and should briefly California should checking the “yes” describe the situation in a note in the space provided. The note might read as indicated at the bottom of this page. In order to show in further detail how the checklists are to be filled out, several illustra- tions of their use are given in pages 78 to 86. Reading these illustrations will make clear how the checking is to be done. How to Continue the Self-Survey The use of the checklists, as indicated above, is only the first step in making the self-survey. To stop at this point would be to have col- lected a mass of possibly interesting data, and no more. The second step in the self-survey is the interpretation of the data. The third step is the evolution of a program of improvement. The fourth step is to put this program into effect. Interpreting the data—In the work of in- terpreting the data collected on the checklists, the handbook, Part II of the self-survey to be published as the May, 1930, number of the Research Bulletin, will be valuable. The handbook shows why the questions in the checklists are significant, refers to authorita- tive discussions of the topic, and shows in some found instances how many states can meet the cri- terion suggested. The interpretation and analysis should in- clude both those questions which are answered “ves” and those which are answered “no.” A “yes” mean that there is no room for improvement. Ex- answer does not necessarily cellent laws and regulations occasionally fail because they are poorly administered. Further more, the checklists cover only points which are of major importance. Practically every question listed could become the starting-point for extensive and intensive investigations. Example. Suppose New York is being stud- ied on the basis of table 1 which deals with attendance laws and their enforcement. The first question asks, “Is an annual or continuing school census on a state-wide basis required by law?” The state answers this question in the afirmative. But this answer gives rise to many further questions of great importance, such as: Is the law being enforced? Is the ad- ministration of the law economical and effec- tive? Are the proper kinds of information be ing collected? Are the returns handled in such a way as to be speedily available to all who need to consult them? Are the returns put to effective use in the enforcement of the attend- ance laws? On the other hand, when a “no” answer is given for any question, the surveyor should have in mind that each question in the check- lists embodies principles of wide acceptance. If a state deviates from these principles there should be very potent reasons for setting them aside. It is true that unusual conditions in a few cases may justify a “no” answer, but this would only be true in a state where exceptional short the burden of conditions prevail. In proof rests on the exceptional cases. If good reasons for making an exception do not appear, the surveyor will raise such ques tions as these: 1. Why would the children in my state be bet- ter educated if my state could answer “yes” to this question ? Under our system of state and county school revenue and apportionment this is, in effect, a minimum salary _—_—_~ " —— Table | Item | Comment | — sisllinsesictcincnntsiheaasstenensae siniipietaniniinastais - 7 1 Constitution, Section 16, requires all state and 60% county school funds toTbe spent for salaries. regulation, although we have no direct minimum salary law [ 59] ee —— as name te ts senate G ee eres Oe ee ~ Pane { 2. What should be the long-time objective of my state with respect to this factor of school efhiciency ? 3. What steps can be taken immediately to improve the situation with respect to this criterion? 4. How does the practice of other states com- pare with what my state does in this re- spect? Example. The chief state school officer in Colorado is not appointed by the state board of education but is elected by popular vote. This state would, therefore, place a check in the “no” column after question 9 of table 13, which asks whether the chief state school othcer is appointed by the state board of edu- cation. The surveyor in Colorado would first ask if there were any sufficient reason why Colorado schools should be an exception to this very generally accepted principle of state school administration. If no good reason be found, he will then make himself familiar with the rea- sons why this principle is sound, using the handbook (Part II of the self-survey plan), and other cited references if necessary. Hav- ing secured a clear picture of the situation in his state and the reasons why a change might be desirable, the surveyor will attempt to de- termine what immediate steps should be taken and what long-term policies should be formu- lated and supported. In making these decisions he will probably want to find out what the prac- tice is in other states. Here again the handbook, with its citations to authorities and sources of information, will be useful. Four General Cautions A tool intended for one purpose is ineffec- tive for another purpose. An axe is useful for felling trees but it has few merits as a wood- carver’s tool. A surveyor’s chain is an excel- lent instrument for laying out the boundaries of a township; other measuring devices are needed to gauge the diameter of piano-wires. Exactly so with the self-survey plan. Cor- rectly used for the purposes for which it was constructed it should yield good results. But it should not be used in ways for which it was not intended. The few cautions necessary to the intelligent use of the self-survey plan, therefore, take the form of a statement of what the self-survey is not. The self-survey plan in its present form is not merely a series of isolated questions. It is not a thinking ma- chine. It is not a prescription for all the ills of state school administration, but rather a guide for diagnosis. Finally, it is not a micro- meter for making hair-line comparisons be- tween states with respect to school efficie; Since it is none of these things it should , be used for these purposes. Caution 1—Use the self-survey as a uni: The questions which comprise the check!is:. and the checklists themselves are closely inte,- related. For instance, the checklist on the t: ing of teachers is related to the checklist oy certification and both of these are related ; the two checklists which deal with the star: board and state department of education. ‘| individual questions in each of the checklist. are similarly bound together. It follows tha: no one question or checklist should be con sidered solely as an isolated element. ‘The factors which make for efficient state schoo! administration are inextricably interwoven. The various threads may be momentarily ¢\ amined, one by one, but the large pattern must be always kept in view. Caution 2—Use the self-survey as a stimu- lant to thought, not as a substitute for think- ing. The raw data concerning a state schoo! system cannot be dumped into the self-surve\ plan at one end and be delivered at the othe: as a fool-proof nostrum for the ailments of ; state school system. Rigorous thinking, the ap plication of common-sense, careful research }\ qualified agencies, and vigorous state educa- tional leadership are not rendered obsolete b\ the publication of this bulletin. Caution 3—Use the self-survey critically. The self-survey plan does not cover ever) phase of state school efficiency. Instead it draws attention to a few crucial points upon which progressive educational thought is fairl) well agreed. It omits much that is important but still controversial ; much that is significant but still not fundamental. A state that could answer “‘yes’”’ to every question in the check- lists might still fall short of perfection. A state that answered every question in the nega- tive might still have some points to commend. Caution 4—Use the self-survey as a means of improvement. Do not use the self-surve\ to secure a numerical measure of school effi- ciency. As a rule questions should be broadl) interpreted in terms of results. The pri- mary purpose of the self-survey is not com- parison but improvement. The self-survey plan should be used to help a state give its children the educational opportunities they need and [ 60] In prove l standir ing th and le: vey Ca 1. ¢ tional ments of the erally the se meeti of edi state what needs const an ef y 2 and help a wu poli also stat lists coir app the Th tee eff jor ba ed at m aa aa Le Payeter hin w entitled to have. Comparative studies of te school systems based on the self-survey vill prove valuable, but they should not be tivated by a desire to find out whether a state is first, second, twenty-fourth, or forty- eighth among its neighbors. The self-survey is diagnostic guide to further critical study; a micrometer. Who Can Use the Self-survey? should prove useful to all who are interested in under In general, the self-survey plan standing state school systems and in increas ing the efficiency of state educational control and leadership. More specifically, the self-su: vey can be used by the following agencies. 1. Chief state school officials, tional research state educa directors, and state depart ments of education can compare the practice of their own state with practice which is gen- erally recognized as desirable. ‘hey can use the self-survey as the basis for a series of staft meetings. They can report to their state boards of education and to the people how closely the state approximates the criteria proposed, at what points it has done well, at what points it needs to do better, and what legislative and constitutional changes are necessary to make an efficient state school system possible. 2. Secretaries of state education associations and their staffs will find the self-survey plan helpful in organizing their membership into a unified body with a dynamic educational policy. The self-survey plan as a whole will also be useful to the legislative committees of state education associations while single check- lists may be intensively studied by other special committees, Still another method would be to appoint a committee to make a self-survey of the state each year and to report annually. The annual report of this self-survey commit- tee would soon acquire tremendous cumulative effect. 3. The editors of state education association journals will find that the self-survey offers a basis for a significant series of articles. One editor plans to have educational leaders evalu- ate his state on one of the checklists each month until the entire series is covered. An- other proposes to select one checklist each veat and to use that topic as the cent il t] eme of the vear’s activities, 4+. Civic and welfare organizations oth national and state-wide in scope, will find the self-survey useful. These organizations tten work through a series of committees. Lhe com mittee on education might well use the selt survey as a basis for study and as a stimulus tor a general program of improvement. QO: ganizations which are national in scope can make the self-survey through education com mittees in the several states. Usually, before the self-survey reaches the point where thi formulation of a definite program is in order it will be neecssary to secure competent expert ruidance. The officials of the state department of education will often be able to give as sistance at this point. The work of these com mittees should be co-ordinated by the central oa national ofhice, thus providing tor m experience of each state available to all 5. Education committees of tures will find that the checklists and the hand hook give in small space and in convenient ref erence torm the principles ot state si hool ad ministration which are generally accepted as fundamental. 6. Schools and colleges of education will find the self-survey plan a useful collateral textbook for courses in educational adminis- tration. The checklists can be made the basis for class discussions, using the handbook and the references suggested therein as supplemen- tary reading. The careful application of the self-survey to a given state school system would constitute an educational contribution suitable for theses for advanced degrees. The types of agencies named above are sug gestive rather than all-inclusive. Other groups will probably survey their state school systems with the instrument here presented. But the six agencies just named—state departments of education, state education associations, editors of state educational journals, civic organiza tions, education committees of state legisla tures, and schools of education—serve to illus trate the types of agencies which may use the self-survey plan. 1 The Research Division of the National Education Association, 1201 Sixteenth Street, Washington, D. C., will be glad to advise organizations with state branches as to how this self-survey may be used most effectively in cooperative studies, [61] TABLE 1 Checklist for Attendance Laws and Their Enforcement See May 1930 Research Bulletin, p. 94-99 for discussion of these criteria Answer the following questions for your state: _ . Is an annual or continuing school census on a state-wide basis required by law? Nm . Does the law permit local school districts to establish and maintain public kinder- gartens? . Must all normal children of seven years and over be enrolled in public or approved non-public schools? 4. Is full-time school attendance required of all normal children, without exception, | at least through age 16? 5. If full-time school attendance is not required beyond age 16, is a system of free, compulsory part-time continuation schools maintained at least up to age 18? 6. Must all schools be maintained at least 8 months or 160 days? . Is the appointment of some officer for checking attendance provided for by law in each school unit? 8. Is the appointment of attendance officers wholly in the hands of school authorities? . Are professional or educational qualifications required of attendance officers? ........... . Does the state department of education include a person to whom is assigned the supervision of attendance? . Is there a uniform state-wide system of attendance records and reports? . Are non-public schools required to make attendance reports to public school officials? . Does the state department of education maintain a policy of continuous study and improvement of conditions relating to attendance laws and their enforcement? Space for Comments Comments Additional space for comments is provided on page 77 [ 62] i. re 12 14 Answ 11 eee. a at TABLE 2 Checklist for Child Labor Laws See May 1930 Research Bulletin, p. 100-04 for discussion of these criteria Answer the following questions for your state: Yes No 1. Is the minimum age for employment at least 16 at times when schools are open (except for work at home in agricultural pursuits and domestic service when schools are not in session) ? hm Is the minimum age for employment in mines and quarries 18? 3. Are physical examinations required of all children before a first certificate or permit for going to work is issued? 4, Are physical examinations required either whenever a child for whom an employ ment certificate or permit is required changes employers or at stated intervals after a child goes to work? Is 8 hours work a day, including time spent in continuation school, the maximum for minors under 18? wn 6. Is a 44 hour week, including time spent in continuation school, the maximum for minors under 18? 7. Are employment certificates or work permits required for all workers under 18? 8. Is the employment of minors under 18 in hazardous occupations forbidden? 9. Is the completion of the 8th grade or 8 years of school attendance required for the issuance of an employment certificate or work permit? 10. Is the emp!oyment of minors under 18 between 7 p. m. and 6 a. m. forbidden? 11. Is there any specific regulation of the work of children in agricultural pursuits? 12. Is the employment of minors in street trades regulated? 13. Is the work of issuance of employment certificates supervised by state authority? 14. Does the state department of education or the state department of labor, or some other state agency maintain a policy of continuous study and improvement of conditions relating to child labor laws? Space for Comments Item Comments Additional space for comments is provided on page 77 [ 63 ] TABLE 3 See May 1930 Research Bulletin, p. 104-07 for discussion of these criteria Checklist for Pupil Personnel and Adjustment Answer the following questions for your state: Yes 1. Does the state department of education make a state-wide study of age-grade progress at least biennially? 2. Are there regulations covering the maximum and minimum sizes of classes or pupil-teacher ratios? 3. Are there regulations concerning a minimum enrolment for schools? 4. Does the law require local units to provide special school facilities, where neces- sary, for handicapped children? 5. Is the educational work of the state or local reform schools under direction of the state board of education or state department of education? 6. Is the appointment of school nurses, wherever needed, required by law? 7. Is the appointment of school physicians, wherever needed, required by law? 8. Does the state department of education include a person to whom is assigned the supervision of conditions relating to the health, welfare, and adjustment o pupils? Space for Comments Item Comments ES Additional space for comments is provided on page 77 [ 64] iat eaten ik chai ik hn Sele ns ead anni. Answer 1. Ha in = TABLE 4 Checklist for ‘Teacher T raining and Supery ision ee May 1930 Research Bulletin, p. 107-13 for discussion ese€ Answer the following questions for your state: | Yes N 1 Hi ive all teacher-training classes in connection with high schools been abandoned in favor of state normal schools or teachers colleges? Is graduation from high school required for admission to all institutions accredited by the state for teacher-training purposes? 3, Do teacher-training institutions offer a variety of curricula leading to definitely differentiated positions? 4. Do you avoid separate boards of control for each of the state teacher-training institutions? (State University and A. & M. Colleges not included 5. Are free placement services available to the graduates of all state teacher-training institutions? ‘ | 6. Is tuition in all state teacher-training institutions free to residents of the state? 7. Is a social development program an integral part of the curriculum of teacher training institutions? 8. Is there a uniform, permanent, and continuous census of teachers and their quali- fications? 9. Is every teacher in the state directly responsible to a superintendent, principal, or supervisor for educational work performed? 10. If the personnel available for supervisory work in rural schools is relatively inade quate, do you supplement it by two or more of the following devices: reading circles, demonstration schools, helping teachers, teachers’ institutes? 11. Do the state teacher-training schools or the state department of education, or both, have a definite program of follow-up work and continuation training for their graduates? 12. Do the state teacher-training institutions or the state department of education, or both, maintain a policy of continuous study and improvement of the curriculum and other factors in the preparation of teachers? Space for Comments Item Comments Additional space for comments is provided on page 77 [65] wes ES Ah ar gmc TABLE 5 Checklist for Certification of Teachers See May 1930 Research Bulletin, p. 113-20 for discussion of these criteria Answer the following questions for your state: — tr ~ . Are at least two years of education beyond graduation from high school required for all initial elementary certificates? . Are at least four years of education beyond graduation from high school required for all initial secondary certificates? Does the state have the exclusive authority to issue certificates? Are certification requirements, other than general minimum standards, set by the state board of education rather than by statute? 5. Is a special certificate for administration and supervision required? ~ 10. 11. 12. 13. 14, 15. 16. 17. 18. Are special certificates for teachers of special subjects and classes (e. g. music, art, etc.) provided? . Are high-school certificates differentiated as to validity among the various secon- dary school fields? . If life diplomas are issued, are they invalidated when holder discontinues education- al work for a period of years? Are equivalent training and experience secured in other states recognized as a basis for certification? Is a minimum age of at least 18 required for all certificates? Is the candidate required to give evidence of moral character? Is a certificate of good health required for all initial certificates? Have examinations as a basis for initial certification been discontinued in favor of the recommendations of teacher-training institutions? Has certification on the basis of teacher-training work in high schools been dis- continued? Are all initial certificates of a probationary nature, valid for a limited period? Are there equivalent (although not necessarily identical) minimum certification | standards for rural and city teachers? Is practice teaching or experience required of candidates for all teachers’ certifi- cates? Are teachers in non-public schools ~e pare to meet standards essentially equiva- lent to those required of public school teachers? | | } aaa Space for Comments Item Comments Answer t 10. D Additional space for comments is provided on page 77 [ 66] TABLE 6 Checklist for Employment and Contracts See May 1930 Research Bulletin 120-24 for d ( NESE ° Answer the following questions for your state: 1. Is a try-out period of teaching service specified? ) Is an indefinite appointment required after this try-out period 3. May continuous employment be made contingent upon a reasonable program of study or other forms of improvement? }. May teachers on indefinite status be dismissed for proven incompetency or other good cause? 5. Is the power to dismiss in the hands of the appointing body? 6. Is a notice of dismissal required by law? 7. May dismissed teachers appeal to the state educational authority 8. Are the laws governing employment and contracts of teachers state-wide in their application? 9, Are teachers penalized for the violation of a contract without the consent of the employer? 10. Does the state department of education maintain a policy of continuous study and improvement of the factors affecting teachers’ contracts? st Ladle Space for Comments Item Comments ol = Additional space for comments is provide pag [ 67 J | TABLE 7 | Checklist for State Salary Laws See May 1930 Research Bulletin, p. 124-26 for discussion of these criteria Answer the following questions for your state: | Yes | No Answer t 1. Are there state regulations governing the minimum amount of teachers’ salaries? |..... ... 1. po | f 2. If there are state minimum salary regulations, does the state schedule prescribe | an salaries which increase with experience? sessed - 3. If there are state minimum salary regulations, does the state prescribe salaries . let which increase with training or grade of certificate? —— en 4. Are apportionments from state funds made to enable local units to comply with | 4. Hai the state minimum salary laws? i —s—“‘“—i‘<‘. 133-38 for discu , ese crilertia ver the following questions for your state: Yes No 1. Does the state board of education control the investment of the permanent school fund? ), Is the investment of the permanent school fund in bonds of the state prohibited? 3. Must all losses from the permanent school fund be made good from income ot special appropriations? Is a unified state education budget prepared by the state department of education or by some other responsible agency? 5. Is the total amount of state school aid determined in such a way that it increases with increased school attendance or other similar measures of educational need? 6. Are constitutional maximal limitations on local or state school taxes avoided? Is a state personal income tax levied to supplement the general property tax? 8. Is a state business income tax levied to supplement the general property tax? 9, Is there a permanent state tax commission or tax commissioner? 10. Are all local school units required to levy a school tax? 11. Are the school boards of all local school tax units fiscally independent? 12. Are non-public schools not conducted for profit, exempted from taxation on buildings and grounds used for instructional purposes? 13. Is bonding for current operating expenses prohibited? 14. Does the law require school district bonds to be of the serial type? 15. Does the state department of education maintain a policy of continuous study of the most effective and equitable methods of securing revenue for schools? Space for Comments Item Comments Additional space for comments is provided on page 77 [71] ¥ 3] 7 a 5 $ ¢ - 4 % TABLE 11 Checklist for Apportionment of State School See May 1930 Research Bulletin, p. 138-41 for discussion of these criteria Answer the following questions for your state: Yes 1. Does the law fix, or is the state board of education empowered to fix, minimum school tax-rate requirements which local units must levy in order to receive state aid? 2. Is there a state equalizing fund apportioned so as to recognize differences in local financial ability to support schools? 3. Does the state apportionment amount to at least 20 percent of the operating cost of public schools 4. Is the use of census or enrolment statistics as bases for apportioning the state school funds avoided? 5. Does the state department of education conduct a continuous and systematic study of the effect of the present system of state apportionments on the welfare | of the schools? | | Space for Comments Comments ;. 9, Answer th Is the of edu _ Arem of edt _ Is the . Must ._ Must _ If the depat . If the multi Are s supp Does the f SE Additional space for comments is provided on page 77 [72] TABLE 12 Checklist for Material Equipment See May 1930 Research Bulletin, p. 142-45 for discussion of these criteria Answer the following questions for your state: Yes No 1. Is there a division of school housing or a school architect in the state department of education? Are minimum schoolbuilding standards set by the state board or state department of education? }. Is there a state schoolhousing code? {. Must free textbooks be supplied in elementary schools? 5. Must free textbooks be supplied in secondary schools? 6. If the adoption of textbooks is on a state-wide basis, is the state board or state department of education the adopting authority? If the adoption of textbooks is on a state-wide basis, is the adoption in terms of a multiple list? 8. Are small local districts combined for the purpose of purchasing standard school supplies? 9, Does the state department of education give advisory service in connection with the purchase of school supplies? Space for Comments Item Comments Additional space for comments is provided on page 77 [73] TABLE 13 Checklist for State Board of Education See May 1930 Research Bulletin, p. 146-49 for discussion of these criteria Answer the following questions for your state: . Is the state board of education predominantly a lay body? . Are ex-officio members omitted from the personnel of the board? . Does the board consist of more than 4 and less than 10 members? . Are terms of office at least five years? . Do terms of office of members overlap? . May members be removed euing their term of office only on proved charges of malfeasance and other specified derelictions? . Is service on the board without regular salary? 8. Are there at least four fixed meetings of the board annually? 9. Does the board appoint the chief state school officer? 10. 11. Does the board fix the salary of the chief state school officer? May the chief state school officer be removed during his term of office by the state board of education only for neglect of duty and similar derelictions? 12. Does the board act as a board for vocational and agricultural education in the |.......... Federal program? Space for Comments Item Comments EEE Additional space for comments is provided on page 77 [74] ” Answer the _ Is the _ Is the _ Is the _ Is the . Does simile Does recel] . Does all ge TABLE Checklist for State Department of Education See May 1930 Research Bulletin, p. 149-52 for discussion ¢ criteria Answer the following questions for your state: Yes No 1. Is the state superintendency open to all without regard to residence? Is the term of office either indefinite or for a period of at least four years? Is the salary of the chief state school official adequate? Is the state superintendent required by law to be a professional educator? Does the state department of education provide suggested courses of study and similar helps for schools? Does the state department of education prepare a uniform system of recording receipts and expenditures for use by local units? Does the state department of education include personnel sufficient to discharge all generally recognized educational functions? Space for Comments Comments Additional space for comments is provided on page 77 [75] TABLE 15 Checklist for Higher and Adult Education See May 1930 Research Bulletin, p. 152-55 for discussion of these criteria Answer the following questions for your state: “2. ~3. “4. - 5. 6. 10. 11. 12. 1. Is the term of office of members of the controlling board or boards of state higher institutions at least seven years? Are there at most ten members on the controlling board or on each of the con- trolling boards? Are members of the controlling board or boards selected from the state at large? Do the terms of members of the controlling board or boards overlap? Do members of the controlling board or boards serve without regular salary? May members of the controlling board or boards be removed during their term of office only on proved charges of malfeasance and other specified derelictions of duty? . Are there legal provisions or administrative regulations which give the state board of education the “iad to control degree-selling or otherwise irresponsible educational institutions . May public funds be expended for the support of public junior colleges? . Does the law providing for the establishment of junior colleges fix minimum pre- requisites in terms of financial resources or enrolment? Has the state enacted legislation promoting adult classes in English and citizenship? Does the law authorize boards of school trustees to permit the use of school build- ings as community centers? Does the state department of education or some other competent official body maintain a policy of systematic study and improvement of adult education? }e Space for Comments Item Comments a re i lade AR — ae Additional space for comments is provided on page 77 [76] ee Table Number — PAGE FOR RECORDING ADDITIONAL NOTES AND COMMENTS —_— Table Item Number Number Comment [77] st one a Application of the Self-survey ‘Toshow morespecifically how the self-survey would be applied several selected states will be studied, each with respect to a different one of the fifteen checklists. The states and topics se- lected for this illustrative analysis are: California, Table 5, Certification of Teachers Pennsylvania, Table 6, Employment and Contracts Virginia, Table 9, State Teacher Retirement Sys- tem Maryland, Table 11, Funds It should be noted that these states are not selected as examples of either good or bad con- ditions. They are merely used here to illus- trate in detail how the self-survey can be ap- plied. In making these illustrative applications, the question of the validity of the various cri- teria for the particular states concerned has not been raised. As pointed out in the instruc- tions for using this bulletin, the criteria were prepared with the United States as a whole in mind. Modifications to fit the special needs and conditions of individual states may be neces- sary. Apportionment of School Illustration 1 The Certification of Teachers in California Table 5, page 66, is a checklist of questions concerning teacher certification. For purposes of illustration these questions will be applied to California. The first question in Table 5 asks, “Are at least two years of education beyond gradua- tion from a four-year high school required for all initial elementary certificates?” There are two jurisdictions in California authorized to issue elementary teachers’ certificates: the state and the county.‘ The state credentials for ele- mentary school teachers meet this criterion but those of the county do not. On examination county boards of education may grant certifi- cates to high school graduates or to persons with four years of teaching experience (School Code, Sec. 5.241.) California would there- fore check this question in the “No” column. + As a matter of strict terminology all California teaching certificates are issued by t The person making the survey would pro}\) wish to indicate in a footnote that the relati,. number of county certificates actually issued on this basis is small and that all state credey. tials for elementary teachers reach and excee) this criterion. (Regulation Governing . Teachers’ Credentials, p. 38.) By referring t, the parallel discussion for this question in the handbook, page 113, one may secure a list 0; authorities which discuss the issue and certain facts showing how the nation as a whole hy, progressed toward meeting the standard pry posed. The second question in Table 5 deals with requirements for secondary certificates an proposes a four-year course beyond high schoo! as the minimum. California can meet this c1i- terion, for it requires at least a bachelor’s de- gree from an accredited institution for the ven- eral secondary credential. (Regulations, p. 10.) The discussion of this question on pave. 113-14 of the handbook shows that in 1927 on)\\ twelve states met this four-year standard fo: high-school certification. On the third question, “Does the state have exclusive authority to issue certificates ?”? Cali- fornia answers “No.” This answer is given be- cause, as pointed out above, county boards ot education in California have the independent right to grant elementary certificates on ex- amination. To this extent the state does not possess exclusive certificating authority. The discussion of this point in the handbook, page 114, indicates that the decentralized certifica- tion system of California is not in accord with the general historical development of certifica- tion practice in other states. In order to fal! in with this tendency California would need to repeal the right of county boards of educa- tion to grant certificates on examination. California answers “Yes” to the fourth question which asks whether certification re- quirements, other than general minimum standards, are set by the state board of educa- tion, rather than by statute.? (School Code, Sec. 5, 150) he respective counties. The state issues credentials on presentation of which county boards of education issue certificates valid for the county concerned. For all practical purposes, however, the tificates on presentation of state credentials is largely a formality. to holders of state credentials, the 58 county boards of education of elementary grade on examination. Except in the case of these certificates i tials constitute valid teachin certificates for the entire state. The granting of county cer- owever, in addition to the authority to issue county certificates algo possess initial jurisdiction in the power to issue certificates on county board examinations, the strict oe in terminology between credentials and certificates as defined in California will not be preserved in this illustrative 2 However a constitutional provision somewhat qualifies the authority of the state board. [78] ee ‘Lo que with an <¢ whether | reachers ( trators ar provide tl 36, 41-4 book dis¢ {926 tw ministrat states iss subjects. Since ondary ¢ fields, it The gen “authori jects” ( page 11¢ certifica fields an involvec now Iss to colle; Beca) for life educati of year answer ever, t 117 ine criteric sistenct tires f » follow diplom Sinc ing an basis { on qué age of fornia 5.440 Cal crede good the re tifyin ment aod l'o questions 5 and 6 the state also answers ‘th an affirmative. These two questions ask whether special certificates are provided for reachers of special subjects and for adminis- tors and supervisors. Since California does tr ra provide these certificates (Regulations, pp. 13- 36. 41-45) it meets these criteria. The hand- hook discussion, pages 115-6, indicates that in {926 twenty states issued certificates for ad- ministration and supervision and _ forty-five states issued certificates for teaching special subjects. Since California does not differentiate sec- ondary credentials as to validity for separate fields, it fails to meet the seventh criterion. The general secondary credential in California “authorizes the holder to teach any or all sub- iects” (Regulations, p. 10). The discussion on page 116 of the handbook shows why secondary certificates might well be differentiated by fields and briefly describes the special problems involved. It also shows that nineteen states now issue specialized high school certificates to college graduates. Because a California life diploma is valid for life even though the holder discontinues educational work over a considerable period of years (School Code, Sec. 5.260) the state answers “No” to question 8 of Table 5. How- ever, the discussion in the handbook on page 117 indicates that few states have reached this criterion, since only six states limit the per- sistence of the life diploma after the holder re- tires from teaching, while thirty-eight states follow California's practice of allowing life diplomas to continue valid indefinitely. Since California recognizes equivalent train- ing and experience secured in other states as a basis for certification, it would answer ‘“‘Yes”’ on question 9. On question 10, “Is a minimum age of 18 required for all certificates ?’’ Cali- fornia answers “Yes.” (School Code, Sec. 5.440). California requires each candidate for state credentials to “verify that he is a person of good moral character” and “to present from the recommending institution a statement cer- tifying that the applicant is physically and mentally competent to render effective serv- ' Theoretically, credentials granted upon graduation from state teachers colleges are unlimited in time. experience is required for all life diplomas. ice’ (Regulations, p. 6). If only the creden tials issued by the state were concerned, there fore, the state could answer “‘Yes”’ to questions 11 and 12 of Table 5. But would have to report that the system of county the self-survey certificate examinations creates an California exception which prevents from answering these questions in the affirmative. Very much the same situation prevails with respect to question 13 which asks whether ex aminations as a basis for initial certification California “No” to this question although only a have been discontinued. would answer very few certificates are issued each year on examination. The discussion on page 118 of the handbook tells why authorities consider evi dence of training a better basis of certification than examinations and shows that a number of states have entirely abandoned the examina tion method of certification. 14, which asks ‘‘Has certification on the basis of California answers “Yes’’ to question teacher training work in high schools been dis- continued ?”” The discussion, handbook, page 119, indicates why this question is valid and shows that California is one of thirty-three states which no longer attempt teacher training in high schools. California answers ‘Yes’ to question 15, since all initial certificates are valid for a limited period only.' The importance of the requirement is indicated in the handbook. Since California does not differentiate be- tween certificates as to their validity in rural or city school districts, a check should be placed in the “Yes” column after question 16. Question 17, which asks whether practice teaching or teaching experience is required of candidates for teacher’s certificates, must be the “No” boards of education may issue certificates to checked in column since county high school graduates on examination without reference to any professional training or prac- tice. Finally, question 18 asks whether the teach ers in non-public schools are required to meet standards essentially equivalent to those re- quired of public school teachers. California answers this question also in the negative. Al- In practice, however [79] though many teachers in the non-public schools of the state are doubtless excellently trained, there is no law which effectively prevents the employment of untrained teachers in schools not under public control. Summarizing, the self-survey, as applied for purposes of illustration to certification laws and regulations in California, reveals certain points of strength and weakness. The major- ity of the questions which call forth a “No” answer (numbers 1, 3, 11, 12, 14, 15, and 17) could be answered “Yes” if it were not for the existence of the county examination route to certification. Thus, although only a few hundred certificates are issued yearly on this basis, the general position of the state with re- spect to certification regulations is lowered. Three other points at which the California certification system might be open to some criticism are: The failure to limit the per- sistence of the life diploma in case the holder discontinues educational work for a consider- able period of years, the absence of standards for teachers in non-public schools, and the fail- ure to provide for differentiation of high sc} certificates as to validity to teach the var; subject-matter fields. On the positive side the self-survey calls tention to the fact that if the county exam); tion route be omitted from consideration +}), California system of certification imposes ny). formly high standards of training. It require, evidence of mental, physical, and moral stand- ards. Certificates for teaching the special si). jects and for various types of administratiy. and supervisory work are provided. Discrim). nation against rural schools is avoided.