PUBLIC EDUCATION
IN NORTH CAROLINA

A REPORT BY THE ,
STATE EDUCATIONAL COMMISSION

PREPARED UNDER THE DIRECTION OF
THE COMMISSION
BY THE GENERAL EDUCATION BOARD

 

RALEIGH
Epwarvs & BROUGHTON PRINTING Co.
StTatTe PRINTERS

1920

 
 

 

CONTENTS
Pages
Rover ‘Ol Lranetnitedl a. ee ee Vv
PPO hsc. her ee cee kn a vii

PART I. THE SCHOOLS AS THEY ‘ARE

I. Epucationat ProGress................. 3
II. BvurmLpInes anp EQuirMENT.............. 12
III. Courses or Srupy anp LENGTH oF ScHoou
Pin oP sehen, Scale 23
% £Y. MN iy cacti. 5 es, 41
- EEE oe So igs kee 58
~
spe PART II. HINDRANCES TO DEVELOPMENT
x
& VI. Apinisrrative HANpICAPS.............. 83
— VII. Limrrarions anp Conrurctine Devetor-
x MINTY as «<9 4 «Ma eM Er. gy 92
Sy
a3 PART III. THE WAY OUT
VIII. Brrrer ADMINISTRATION................ 107
> IX. Berrer Trarep RI ree. ea 116
$ X. Berrer Finanoran Suprort............. 128
21/150
Sab
i
iu
i

 

 

 

 

 

 

LETTER OF TRANSMITTAL

To his Excellency, Governor T. W. Bickxerr,
Raleigh, North Carolina.

Dear Str:—As directed by law, I have the honor to
submit herewith the report of: the State Educational
Commission. This report’ contains the findings and the
general recommendations of the Commission. In a sub-
Sequent report containing the proposed new school code
will be found the recommendations that your Commis-
sion believe should be enacted into law at this time.

It may, we hope, be permitted us to say that at every

stage of our inquiry we have realized that our work js
a work in behalf of the children of North Carolina, and,

therefore, a work of love. We have been animated by
a single purpose—to do all that at the moment can be

done to improve the lot and the outlook of the children
of the state.

that we should make it clear to you that we have had
the most hearty co-operation of the entire teaching
foree of our state, including the State Department of
Education. As the funds provided by the St

thorough manner, we ourselves renounced the per diem
allowed by law ; in the testing of the classroom work of
our schools, many teachers gave liberally of their time
and energy without cost to the Commission. The list
would indeed be a long one were [ to attempt to mention

 
vi Letrer OF TRANSMITTAL

Board, which has for many years supplemented the
resources of our State Department of Education, and
which not cnly contributed a considerable sum of
money to the survey, but also the services of members

of its staff.
We trust that this report will stimulate the people
of the state to take a long forward stride in the field of

public education.
Respectfully submitted,

Rosert H. WRIGHT,

Chairman, State Educational Commission.

   

 

 

 

HAPTER 197 p i
ubl 2
t Séscion. 1917, is ic Laws of North Carolina,

ucational C * ct
ommission,’’ gai

com sal ae

posed of five members id be d commission to be

ernor f appointed
oe rts a term of two years. The Gene =~ the Gov«
Unde eee this commission for two ral Assembly
commissi ese Acts “‘It shall be the d re
mission to make uty of the said

a thor
laws of the entire pu horough study of the school

blic school system of the state

5 isting ed i P
a comparative study and nae conditions, and

system igation of ‘
the cette f other states. Said commi _ the educational
p dlic school laws of ssion shall codify

i f th ae
m our state, and report it © teacher training agencies

to the General Assembly
 

 

   

viii

code.
local laws that it is doubtful if the school officials of any

locality know all the laws relating to their respective school

systems,
and amended so frequently that it is in pressing need

of complete rewriting.
that all local school laws should be repealed, and we

PREFACE

on teachers’ pensions, but to devote our f unds and energy
to a thorough study of our public school system and the

teacher training agencies of the state.

In a separate report we shall submit a revised school
Our investigation shows such a multitude of

and the general school law has been added to

It is therefore our judgment

have drafted a general school law which, if adopted,
will give the state a single, unified school code, sufficient-
ly comprehensive to meet varying needs and conditions.

The Act of 1917 authorized your commission ‘‘to
call to its aid such assistance as may be available without
expense to the state, from public or private foundations.’’
Acting under this authority, your commission invited
the General Education Board to give expert assistance
in making a survey of educational conditions in our
state. This the Board consented to do.

During 1918-1919 war conditions so thoroughly
affected our public schools that it was deemed advisable

not to make the survey before 1919.
It was fortunate for us that the General ‘Education

Board placed the study of our schools in the hands of
Dr. Frank P. Bachman, working in co-operation with
Dr. Wallace Buttrick, President, and Dr. Abraham
Flexner, Secretary, of the General Education Board.
Dr. Buttrick, long the Secretary and since 1917 the Pres-
ident of the General Education Board, has been for many
years in close and sympathetic touch with public educa-
tion throughout the South—nowhere more closely or
sympathetically than in North Carolina. He has been
the friend and helper of those who have, during the last
twenty years, patiently built up the existing educational

 

for Wome .
nin M
Sulted the cdiesaaien 1920. We have thus freely con-

PREFACE

structure i :
- His counsel and co-operation have been

invaluable at ever i
y stage of this énterpri
Be ! rprise. Dr,
ic Ms recognized expert in educational matters th aes
> The American College,’’ ap ere
e United States and C
F anada,’’ ‘‘A S :
= several other books on education am a ioe
reais papers and periodicals * ‘
; ho 6c ‘ ;
Rona ey: Srbecovgy In Elementary School Adminis
mi ole 2 i Stic a of Elementary enieitiae*
: e time Assistant int
= ' ant Superinte
aa Schools of Cleveland. He has naires mn
ri i Surveying school systems, having ies oak
Ps or of the schools of New York ‘Cit eae
Pre presi and Gary, Indiana. His ma in Meek.
ocean Le ha bore fruit in the form of a vie
8 that are among the best possessed i “ es
ny

Hi ini
8 training and experience

: author
‘Medical Education in

as Many
Dr. Bachman is the

In addition to
any city super-
achers of educa-

: ad in conference with us m
" :
unty Superintendents, te

izens’ Conf,
Ang erence on Ed i
ina, held at the North Carolina re

ional w i
orkers and interested citizens

ix

 
 

|
|

x PREFACE

of our state. We are, therefore, submitting to- you a
report that contains what we believe to be the facts
about our public school system, and on the basis of these,
and the best judgment of teachers and citizens, we have
worked out recommendations that we believe will give
North Carolina the best school system possible at this
time. We have always been mindful of existing con-
ditions, and conscious of the fact that, if we wish to do
the best possible for our children, we must start with
our public school system where it is and advance it by
stages to what it should be. Your commission has
therefore not prepared an ideal or utopian scheme, but
rather a code which preserves the good in our present
educational scheme, strengthens the weak places, and
which will facilitate future progress, to the end that all
children of the state may enjoy the educational oppor-
tunities that the state is now able to furnish.

We trust that this report will be read by every member
of the General Assembly and that the recommendations
will be given careful study. We feel sure, if this is done,
that the new code embodying our recommendations
will be enacted into law.

Respectfully submitted,

Rosert H. Wrieut, Chairman,
L. J. Bett, Secretary,

N. W. WALKER,

C. E. BREWER,

C. C. WRIGHT,

State Educational Commission.

 

regen

Ce ee

 

PART I

THE. SCHOOLS AS THEY ARE
- CHAPTERS I-v

 
 

a ta ARIS:

 

 

I. EDUCATIONAL PROGRESS

seems today among the self-evident functions of

a democratic government. But it has not always

been so. Public education has had to Win its way against

Severe opposition—nowhere, perhaps ainst__heavier
odds than in our own stata seu et_hea

North Carolina was chiefly settled by the English,

who Drought with them deep-seated class distinctions,

& repugnance to public taxation, and the firmly rooted

belief that education is a private and not a public matter,

Certain sections were settled more particularly by non-

English immigrants—for example, the Moravians settled
in Forsyth, the Swiss in Craven, the Scotch-Irish in the

southern and western sections, and the Germans in the
south-central and western portions. These non-English,
like the English, settlers believed that education belonged
to the family and the church, and not to the state.
Moreover, traditions and convictions were fortified by
the mode of life and the isolation of the people, by slavery
in the early days, and more recently by the presence
of a large number of freedmen. N evertheless, gradually
the objections to public education gave way before an

‘HE maintenance of a free system of public schools

 

 

for the present Seneration to realize the greatness of
the change which has been wrought. Only those of an

older generation, who remember Dr, Wiley begging his
fellow citizens to_join in procuring legislative permission
for Winston to organize public schools, even though pro-
cin 4 ftom levying taxes to support them, can

[3]

 
Peres a es a

eo.

MSE ee seen a ae
. a
~ eaad

 

4 Pusztic Epucation 1x Norru Carorina

wrought is Rocky Mount, voting a separate bond issue
of $38,000 for the erection of colored schools. In the
development of this progressive educational sentiment
have labored some of the noblest sons of the old North
State—Vance, Jarvis, Aycock, Caldwell, Murphy, Battle,
Wiley, McIver, Joyner, Graham, and many others.

EXPANSION OF THE SYSTEM

The public schools now include elementary schools,
high schools, normal schools, agricultural and engineering
colleges, the North Carolina College for Women, and
the State University. The State University, the head
of the system, was the first of these established, being
chartered in 1789 and opened in 1795. The history of
the University is in a way the history of the state, for
its graduates have been intimately associated these
hundred years with every movement for the economic,
political, moral, and educational betterment of the
commonwealth.

Fifty years elapsed between the founding of the Uni-
versity and the establishment of public elementary
schools in 1839. Their establishment represented a
tremendous advance in educational sentiment. For,
while the State University was founded as a child of the
state and under its control, the state did not assume
responsibility for its support. In contrast, the state
did assume responsibility for maintaining public ele-
mentary schools, as the law of 1839 recognized the right
of the state to use state funds and to authorize the levy
of local taxes in their behalf. :

More than three-quarters of a century have therefore
elapsed since the establishment of the first public ele-
mentary schools. In the meantime, selfish interests
and prejudice have many times attacked this basic in-
stitution of democracy. Its foundations have frequently

 

 

 

 

Epvucarron ar Progress

ng appreciation the 5.4
ildren in 1918, and the
isive of the schools of t

for whité ch

22 rur.
al schoolh
ouses
dren, exclus

Agr for colored chil-
the 136 specially char-

gram of the first pu

as elsewhere was simple:

of an English

to the law, te
drawing,

grammar, geo
the U

ach reading, spelling

writi ithmeti
language lessons, ; Po haa ene

and composition

» Englis
of North Carol rege

re no public high
than an English ©
rivate academies

bi and girls desiring more
© compelled to attend p

some high
as 1886 there were only eight

eporting high school instruc-
 

———— ae
ene leet

|

 

Puszic Epucarion 1x Norru Carormna

tion,’ and only two went so far as the tenth grade. Never-
theless, the leaven was at work. Twenty years later
(1906) practically all of the 78 specially chartered dis-
tricts (city schools) supported some kind of high school,
and 968 country white schools and 90 country colored
schools were teaching some high school subjécts. As
to the enrollment at this time, there are no reliable data,
but the Superintendent’s report for 1902-1903 gives for
the rural schools, 5,724 pupils studying algebra, 6,801
higher English, and 663 Latin.

With the need so obvious and pressing, the state under-
took in 1907 to encourage the establishment of county
high schools, and, through special financial aid, to lessen
their local cost. The response was immediate; the high
school inspector in 1908 reported 213 publi¢ high schools,
132 in the counties, and 81 in the cities and towns. The

_ enrollment in 177 of those reporting was 6,398. This,
however, was merely the beginning. A decade later
(1918) there were 209 county and 149 local and city high
schools,? with a combined enrollment of 23,461, these
figures taking no account of scores of small schools giving
some high school instruction.

Our public schools have developed in still other ways.
Not the least of these is the lengthening of the school
year, particularly in the rural schools... Our city schools,
like city schools elsewhere, have always had a school year
ranging from eight to ten months, the usual length. Ac-
cordingly, the city school year has undergone little change.
At present the average is more than eight and one-half
months for the 39 cities having a population (census of
1910) of 2,500 and over. The great change has come in
the length of the rural school term. The average for

‘These cities were: Goldsboro, Charlotte, Durham, New Bern, Greensboro,
Wilson, Salisbury, and Winston. Superintendent’s Report, 1885-1886, page 92.
*Thirteen of the city and town high schools in 1907, and 37 in 1918, received state

aid and were also classed as county high schools, as they were open without tuition
to the children of the county.

> tetera baiaiea nant er Soe

In the e,
from 54 to 7
47 to 69 per cent,

 

 

EpucationaL Progress ¥

white schools in 1880 was only 48 days. Decade. by de-
cade this has slowly lengthened, rising to 73 in 1900, and
to 116 in 1915; in no county in 1919, owing to the new
school law, did the rural school«term fall below 120 days,
and in a number it was longer.

Measured alone by the average length of term, to say
nothing of increased efficiency, the elementary school
opportunites of rural boys and girls have, within the last
forty years, increased about one and a half times.

The public school has also slowly extended its benefits
to a larger and larger proportion of the boys and girls of
school age. This is shown in the increased per cent of
the total school population going to school. The school
population includes all children between six and twenty-
One years of age. It is not expected that all children of
these ages will attend school—for example, children
nineteen and twenty years old. The law merely keeps
the door open to these older children. N evertheless,
any increase in the percentage of the entire group attend-
ing school indicates an increase in the attractive power
of the school. On this basis the hold of the public school
on the people of the state in 1880 was weak, as only 51

~ Per cent of the total school population were in the public

Schools; by 1900, 58 per cent of the school population
came under public school influence; by 1910, 71 per cent;
and by 1918, 74 per cent. The school enrollment thus
increased between 1880 and 1918 147 per cent, whereas
the school population increased only 68 per cent.!. In
short, the public school now reaches annually, for periods
of varying length, practically four out of every five of the

white youth, and practically seven out of every ten
Colored youth of legal school age.

As a final instance of the development of the system,

ieee
orresponding period the enrollment of the white school population rose
8 per cent, and the enrollment of the colored school population from

2

 
 

 

 

8 Pusuic Epucation ry Norru Carorina

-we cite the establishment of institutions for the training

of teachers.! The teacher is always the essential factor
in a good school. Obvious as this would seem, the Amer-
ican people as a whole have never appreciated it. Fol-
lowing the common practice, we launched our public
school system but madé no provision for the training of
teachers. Despite the repeated solicitations of educators
for the establishment of teacher training schools, the state
took no step in this direction until 1877, when a summer
school for white teachers at the University and a state
colored normal school at Fayetteville were established.
From time to time thereafter additional summer schools
were organized—four for colored and eight for white
teachers. From these beginnings grew the present teacher
training facilities of the state, which comprise, for white
teachers, the school of education at the University, the
North Carolina College for Women (established in 1891),
the Cullowhee Normal and Industrial School (1893),
the Appalachian Training School (1903), and the East
Carolina Teachers’ Training. School (1907). The state
now supports three schools for colored teachers—the
state colored normal schools at Fayetteville, Elizabeth
City, and Winston-Salem—and for the training of Indian
teachers the Cherokee Indian Normal School at Pembroke.
Besides these institutions, the state has recently estab-
lished teacher training departments in twelve high schools,

and six or eight week summer schools in most of the

counties.
INCREASED FINANCIAL SUPPORT

The growth in public sentiment has expressed. itself
also in more and more liberal financial support of the
public schools. For example, the total expenditure in

1wWhile not considered here, it should be noted that the State College of Agri-
culture and Engineering, at West Raleigh, was established in 1889, and the Agri-
cultural and Mechanical College for Negroes, at Greensboro, in 1891.

SE iO SITE. an ar a aa arene

 

 

By Pea gs:
i i ae sae $ 396,000.00
Se: 787,000.00
I pa ggepiaeaneroe 32082,000.00
he ,179,000.00
ie ASG RR Aig 8,105,000.00

al current school reve

ars later, in 1913 32 1918

For example, in

nt school 60 per cent of thei
counties, revenue, as against 20 per ie gy
e
 

 

 

10 Pusitic Epucation 1x Norru Carorina

The increased financial support of the schools shows
itself particularly in the increase in the annual current
expenditure per pupil in average daily attendance, and
in the increased investment in school property, such as
grounds, buildings, and equipment. The annual current
expenditure per pupil in average daily attendance was,
for city and county:

Td 880e. 2. Sosa eee eee $ 2.10
7h ASOO) 3 5g hate Sy ee 3.48
TOGO occa os = ae oeee eee 4.43
Tee O4 Os is oe ieee ne oe 7.55
Tite MONG a aac Fee oes es ees 12.64

with an annual current per pupil expenditure in the cities
of $20.68, and in the rural districts of $10.63.

(860 ym $ 2.10
1890 pam 4 3.48
1900 $ 4.43

FicureE 2
Growth in Current Expenditures per Pupil in Average Daily Attendance

On the other hand, the capital investment in school
property was:

In 1880, $ 227,404.00 or $ .88 per pupil enrolled

In 1890, 792,304.00 or 2.43 per pupil enrolled
In 1900, 1,115,250.00 or 2.72 per pupil enrolled
In 1910, 5,862,969.00 or 11.27 per pupil enrolled

In 1918, 14,303,503.00 or 22.55 per pupil enrolled

For the cities alone the investment per pupil enrolled
was, in 1918, $54.92 and for the rural districts, $15.12.

ee ed

Sta

 

 

11

tee $ 0.88

1890 mm $ 2.43

19

°° $ 2.72
1919

feo $ 11.27
1918
$22.55

> Made mark
arked Progress, especially

Of this 7
progress t
i Should be st shia
 

 

 

 

II. BUILDINGS AND EQUIPMENT

purposes of description, into rural schoolhouses,
those under county boards of education, and
city schoolhouses, those of specially chartered districts."

Or public school buildings may be divided, for

RurRaL SCHOOLHOUSES?

At the end of the school year 1917-1918 there were in

the state 7,738 rural schoolhouses, of which 5,422 were
for white and 2,316 were for colored children. Few white
schoolhouses and less than half of the colored school-
houses are more than twenty years old, for,-since 1900,
5,070 new rural schoolhouses for white and 1,293 for
colored children have been erected. It might, therefore,
be expected that at least the rural white schools would
have good plants, and that approximately half of the
colored schoolhouses would be of recent design. This,
however, is not the case. For, from the revival of inter-
est in public education after 1876 until very recently,
the paramount question before rural school authorities
was not how well, but how cheaply could building be
done; it was not for them a question of building a modern
schoolhouse, but of procuring any schoolhouse at all that
would shelter the pupils and keep the schools going.
As a rule, the funds available were extremely small.
For example, the average value of grounds, buildings,
and equipment of rural schoolhouses in 1880 was about
$50; in 1890, about $130; in 1900, $160; in 1910, $420;

 

  

There has been a cor

Tes ing j
ponding Improvement, i

nt n sch
€-made benches have peace

while the percentage
S has decrease.

furniture. Since 1905 h

te schools,

age furnished ‘ wh

Per cent, with patent desks aa aera <n
The Tural om to 32

ing. Not nro a situation is thus in general

Schoolhouse be Asks larger sums being s Apes

substantial] id ut these are being built pent per rural

urnished. and are b more and more
 

14 Pusric Epucatrion 1x Nortu Caronina

   

! In describing the smaller rural schools—those having

three rooms or less—it should be held in mind, as stated

; above, that they were mostly built at a time when severe

. economy was necessary. Only recently has it been pos-

i sible to give weight to the sanitary, educational, and

| social requirements of a good rural school. Consequent-

ly, a majority of the rural schoolhouses—probably three-

| fourths—are unsatisfactory. Only the newer buildings,

those erected within the last five or six years, approxi-
mate acceptable standards.

The older one room buildings are one story, box-like

structures, differing from each other chiefly in size.

Hi} Usually unpainted and in ill repair, their weatherbeaten

 

exteriors present a cheerless picture. Nor are they more
li cheerful within. Ordinarily there is but a single room,
i seldom a vestibule or cloak room, The hats and coats
iH of the children hang from nails driven into the walls.
nit - The windows, on three sides, if not on four, give a cross-
i! work of light and shade that is not only trying to the eyes,
but accentuates the smoky, brown ugliness of the ceilings
and walls. The walls are usually of natural pine, rarely
plastered, and less often decorated. The old-fashioned
i ‘ong John’’ stove radiates its cheer on a chilly day from
i its place of honor in the center of the room; but even the
i kindly stove all too often becomes a torment. The wind-
| fall pine fuel makes a quick but transitory heat, so that
i at one moment the room is hot to suffocation and a half

i hour later cold to the point of discomfort. Even when

i the room is seemingly comfortable, the children may be

the head and shoulders, and at the same time the cold
winds, sweeping under the schoolhouse—which is with-
out proper underpinning—up through the floor and into

| half hot and half cold. They may be comfortable about
)

| the classroom may be biting at their feet and legs. While
|
|

 

OLD T
YPE ONE ROOM RURAL SCHOOLS

some children enjoy the comforts of patent desks and

 
 

 

 

Buitpines anp Equipment 15

‘.. occasionally of patent single desks, others quite as often
must sit six weary hours a day on home-made desks and
sometimes even on home-made benches. Home-made
desks and benches are particularly common in colored
schools. Seldom are there adequate provisions for drink-
ing water or for the washing of hands and face, to say
nothing of adequate toilet facilities. There is now active
an excellent piece of new legislation requiring the con-
struction at all schoolhouses of sanitary privies, one for
boys and one for girls. At present, however, taking the
rural schools as a whole, probably less than 60 per cent
have adequate toilet provisions, and probably half of
the outhouses are dilapidated, disreputable, and filthy
beyond belief.

The teacher’s lot in these older one room rural schools ©

is uninviting. She may have a table or desk on which
to work and a chair to sit on, but she can not count on
having them. Rarely is she provided with a set of text-
books in use, unless she purchases them out of her meager
pay. Of general educational equipment there is little—
perhaps a small strip of composition blackboard or a
patch of painted wall, occasionally a map of North Caro-
lina, and‘not infrequently a small, ill-kept and much worn
school library. A young inexperienced girl, placed in
one of these shed-like, poorly heated, poorly ventilated,
and poorly equipped schoolhouses is expected to conduct
a school.

Moreover, in far too many cases the teacher is expected
to do the janitor work. The Sweeping is usually done
at the noon hour; the cloud of dust thus raised is breathed
by pupils returning from their noon play. She is also
€xpected to prepare the fuel. The windfall pine is hauled
to the schoolhouse and usually thrown on the ground out-
Side (woodsheds are rare), and the teacher depends on

 

sti ttn le
      

 

 

 

16 Pusiic Epucation 1n Nortu Carorina

the older boys to cut it into stove lengths. A corner of
the schoolroom provides the only storage for fuel against
storm and rain.

The sites of these older schools—in fact, of almost all
the rural schools—vary in size from one to two acres;
they are usually well located, on a main traveled road,
but the grounds are as a rule unimproved and without
play apparatus. Even when the teacher seeks to im-
prove the grounds, nature in seven or eight months undoes
more than she can do in the course of a school year of
four or five months, with the result that, while many of
the rural schools are picturesque in their setting, sur-
rounded by beautiful trees, the great majority have only
a bare spot in front of the schoolhouse for play, with the
forest and underbrush crowding in on all sides.

The above descriptions answer also for the older two
and three room schoolhouses, which are, usually, one:
room buildings with an additional room or two tacked
on. The new rooms are sometimes put at the side of
the original room, sometimes at the rear, and sometimes
crosswise at the rear. Whatever the method of en-
largement, the additions have the same defects as the
original structure—they are poorly lighted, poorly ven-
tilated, poorly heated, poorly equipped—while the new
rooms usually decrease rather than add to the fitness of
the original room. Frequently some of its windows are
closed, so that it is still more inadequately lighted; slid-
ing doors are often placed between the original room and

one or both of the new rooms to provide an auditorium .

for school and community gatherings. Such a meeting
place is much to be desired; nevertheless, the sliding
doors not infrequently reduce the blackboard space and
increase the general ugliness of the original room.

The newer rural schoolhouses—those erected within
the last five or six years—are different. These newer

 

 

Lae septa icmmt

 
 

 

 

 

5 ORE o

 

Tih Se ee

 

 

 

 

i Buitpines anp Equipment 17

structures number about a fourth’ of all the small rural
schools, and most of them, especially the Rosenwald
colored schools,” represent a decided advance over the 2
older buildings just described. They are architecturally 2
pleasing, being painted, and having entrance porches, f
vestibules, and cloak rooms. They are usually plastered
and decorated, equipped with composition blackboards,
seated with either double or single patent desks, and
fairly well provided with educational equipment. These
newer school buildings are thus a great credit to the state.
However, even some of these are too cheaply built for
permanency and leave much to be desired in the way of
lighting, heating, ventilation, toilet and sanitary arrange-
ments. Of the very best of the newly built structures,
few, with the exception of some of the Rosenwald schools,
have a workroom for boys and girls, a place for serving
hot luncheons to children, or a place for play in bad
weather, while the patent heater is practically unknown.

Larger Rurat Scuootnouses

The larger rural schoolhouses, that is, those having
four or more rooms and located, mostly, in consolidated
and special tax districts, are of three principal types:
(1) rambling, one story buildings that have grown into
four, five, and even six teacher schools by the addition
of one or more rooms at a time to an original one or two
Toom school; (2) two story frame structures of a half
dozen classrooms; and (3) brick buildings.

The larger rural schoolhouses of the first type have
Ost of the defects of the older one room school and some

whpetween 1913 and 1918 there were erected 1,414 new rural school buildings for
: © children and 494 for colored children.
Proviggn its Rosenwald, of Chicago, codperates with local school authorities in
When tie Tura! schoolhouses for colored children, contributing, as a rule, $300 ~
he authoriti

8umsj : credxaral
pts P “Pproximately the same ratio. Up to March, 1919, 111 col oho
© thus been built in North Carolina.

 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
 

18 Pusric Epucation 1n Norru Carorina

besides. They are, however, generally seated with patent
desks, fairly well equipped with instructional materials,
and usually have cloak rooms and outside toilets. Never-
theless, they are frequently less pleasing in external
appearance than their older prototype, the lighting is
often poorer, the fire hazard from the single stove is greater
and the building as a whole noisier, more confused, and
more untidy. Buildings of this type are usually occupied
by mill children or colored children. Such buildings
can not be condemned too strongly, representing, as they
sometimes do, not so much a lack of means, as indifference
to the rights of children and a desire’ to escape school
taxes.

The second type, or the large two story frame structure,
provides for both a rural elementary and high school,
and has an auditorium for school and community gather-
ings. As a rule they displaced one or two room schools,
and in many instances were a tremendous local advance
in school facilities. They likewise represent an awakened
interest in public education, and were often erected at
great financial sacrifice. Some of them are attractive
from the outside, but few from within. Almost without
exception they violate the principles of good lighting,
heating, and ventilation, and the fire hazard, separate
stoves being used, is very great. However, in most locali-
ties they have ‘served their generation and must soon give
way before the rising demand for more appropriate school
buildings.

The final type is the large brick structure of the con-
solidated or special tax district. Of these larger and more
substantial buildings there is at least one in a majority -
of the counties. Some of them are located in the open
country and some in villages. They are mainly of recent
date, and some of them are extremely well planned,
following the latest ideas of schoolhouse construction.
The classrooms are properly lighted from one side, ap-

 
 

 

 

MRE 5

- aes eer ee
etic Reh RAE

= SOON

AES AERO MILED

eee ee

 

ted, and have inside Sanitary lavatories
and toilets. Besides the usual classrooms, there are one
or more offices and teachers’ Tooms, a library, science
laboratories, cooking room, workshop, the needed store-
Tooms, and an auditorium; in no instance, however, is

re &@ gymnasium. In connection with the best. of
» When in the open country, there are dor-
girls, and occasionally appropriate
: Such buildings are an honor to any
community and represent the high-water mark of rural

   

8lze are ample for all school purposes, providing ample
8tounds, play Space, athletic fields, and dethonstration
- So far little has been done to develop the play and
“bletic opportunities of these sites, and few are fur-
nished with Play apparatus. Since the modern school

 

bptetieiaias,
 

 

 

|
|
:
|

20 Pusuic Epvucarion ry Norru Oarorrna

can be expected under present conditions from the smaller
and older rural schools, but the larger and best of the
rural schools should be models of cleanliness, order, and
beauty. Although most of the larger schools are new,
yet it would seem that more could have been done than
has been done to beautify them. Within sight of many
are vines, shrubs, and trees of rare beauty—jasmine,
honeysuckle, azaleas, rhododendrons, dogwood, redbud,
holly, scarlet maple, gum trees, pines, etc. With such
beautiful material at hand, teachers and pupils, working
together, might make the school grounds of the state
renowned, and not only add to the attractiveness of the

schools themselves, but also strongly influence the move-
ment for better and more attractive homes.

City ScHOOLHOUSES!

~The schoolhouses of the cities may be divided into older
and newer structures. The older structures, whether
they be in the smaller or the larger cities, represent mostly
buildings erected at the time the graded schools were
organized, and were built chiefly between 1890 and 1910.

When the graded schools of the cities were first organ-
ized, the financial strain of providing quarters and main-
taining the schools was great. Consequently, with few
exceptions, the buildings erected prior to 1910, although
generally of brick, are very poor. Again, the original
defects of these buildings have in many instances been
aggravated by additions made to accommodate increased
enrollments, so that almost all the older buildings are
now antiquated and unsatisfactory.

Among the newer structures, erected within the last
half dozen years, are some excellent buildings. These
10ur observations on city schools are based on a personal study of practically

all the schoolhouses of all the cities of the state having a population of 2,500 or
more according to the census of 1910.

ie

 

;
-
3

 

BETTER Typr

  
 

 

ONE ROOM RURAL SCHOOLS
   

 

 

 

 

Burtpines anp Equiement 21

present a beautiful exterior and interior appearance,
are properly lighted, heated, and ventilated, and are
provided with modern conveniences, including well equip-
‘ped and ample play space, well planned and improved
grounds, and occasionally a gymnasium. Yet. not in-
frequently even these newer buildings have been built
too cheaply and in many instances have not been care-
fully planned. Defects due to lack of funds could not
be avoided, but expert advice could have prevented

some of them. Probably three-fourths of all the. city
schoolhouses of the state, especially those for colored
- children, should, for sanitary and other Yeasons, be re-

Playgrounds are now a recognized essential of a good
school. Only the most Progressive cities have recognized
this requirement, and only a few schools, for example,
those at Wilmington and Winston-Salem, have grounds
ample for play purposes. Fortunately, in most cities
play space can still be procured on reasonable terms,
and no new building should be erected on grounds that

do not afford children ample opportunity for free physical
development.

To summarize: Within recent years great advances
have been made throughout the state in public school
buildings. These are being more substantially built,
and better equipped. Nevertheless, the school building
Situation is now extremely acute, first, because of the
crowded condition, especially in the cities, and, second,
because of unsatisfactory sanitary conditions. Probably
three-fourths of all the rural and city schoolhouses now
Standing should be replaced.

The people of the state are aroused to the unsatisfactory
character of their schoolhouses; they are likewise desirous
of rebuilding them and making them the best possible.

 
 

 

 

22 Pusiic Epvcation In Nortu Carotina

Unquestionably, North Carolina has entered on the great-
est and most extensive school building program of its
history.

Before the state goes too far, ought not earnest con-
sideration be given to the following questions?—

1. Is it wise for North Carolina to continue to build
only for the present? Has not North Carolina reached
the point in its financial development where it can build
permanently? Its entire rural school plant has practi-
cally been rebuilt twice within the memory of men now
living, first, between 1876 and 1900, and for the second
time since 1900, with probably three-fourths of all rural
schoolhouses again ready to be displaced for the third
time. The loss to the cities for this same cause has also
been great, but probably not relatively so great as in the
rural districts. For the state as a whole, out of the pres-
ent total investment of more than fourteen millions in
public school buildings, probably half, if not more, has
been lost because buildings have been constructed too
cheaply, and with too little reference to sound principles.

2. Is it wise for the State of North Carolina, facing an
enormous expenditure for public school buildings in the
immediate future, to permit rural districts and cities to
go forward with buildings which are defective in arrange-
ment, lighting, heating, ventilation, personal service
facilities, etc.?’ Has not the time come when the state,
through the state department of education, working in
co-operation with county and city boards of education,
should exercise supervision over the planning and erec-
tion of all schoolhouses, to the end that these may, be
built in conformity to well accepted sanitary, educational,
and social requirements, and that the health of the chil-

dren and the purse of the taxpayers may both be safe-
guarded? | ;

  
     

 

    

III. COURSES OF STUDY AND LENGTH OF THE
SCHOOL TERM

UITE as important as good buildings and good
equipment in the make-up of a good school are

the course of study and the length of school term.

Tue EvemMentary Course or Strupy

The course of study under which the elementary schools
now operate, issued in 1904, was revised in 1909, in 1917
and in 1919. Despite these revisions, its essential pts
acter has remained throughout the same. When first
outlined, in 1904, work was prescribed in seven different

studies, all to be taught in each of seven grades, but with
varying emphasis. The several studies were as follows:

¥; Reading

a. Spelling
b. Literature
Language
Drawing
Arithmetic
History
( Geography
7. General: Health talks and current history

The revision of 1909 incl
spelling was separated fro
tuted for health talks,
vision of 1919 required
elevated to a formal pla
Courses were outlined for
ing to girls in the sixth

with agriculture and
studies in 1917.

22 se 99 bo

uded nine required studies:

m. reading, physiology substi-
and agriculture added. The re-

ten studies, handwriting being
ce In the program; in addition
the teaching of sewing and ook:
and seventh grades, which, along
manual training, became required

3 (23)
 

 

24 Pusiic Epucation 1x Nort Caro.ina

The number of studies to be taught in each of the several
grades of the elementary schools is large; but the number
is not uncommonly large, for not infrequently music,
free play and physical education are also required. The
amount and character of the subject matter prescribed,
the methods of presentation and helps suggested compare
favorably with similar efforts elsewhere. The North
Carolina course has, however, the weakness of most seven
year programs; that is, about the same amount of work
is crowded into seven school years as is ordinarily found
in eight year programs.

The several courses prescribed for the elementary
schools of North Carolina also contain definite rules for
the advancement of children from grade to grade. These
are as follows:

 

‘If the school year is not long enough to complete
the course in each grade the work should be continued
in the next year until it is completed, ‘and the classes
show a knowledge sufficient to warrant promotion. Chil-
dren should not be permitted to pass from one grade to
another until such evidence is given. Reading and lan-
guage should be the basis of promotion in the first three
grades. The work as outlined for each grade can be
completed in about eight months.”

Whether the state in its attempt to improve rural
schools should have adopted a standard seven year course,
involving an eight months’ school year and regular at-
tendance, is not at issue. We can not, however, pass
over certain conditions that existed in 1904 and mostly
continue to exist, and other conditions that have resulted
from the effort of the rural schools to follow a standard
seven year program, which affect unfavorably their pres-
ent efficiency.

 

Even in large schools the modern elementary program BETTER TYPE ONE ROOM RURAL SCHOOLS
imposes a heavy burden upon teachers. If burdensome Jaume =e

 

 

iiNet

 
 

 

 

 

 

 

mn TF

- 2 ot tte aenea ne nn gman ncaa ne thrtnmeamenaae
= a > Sere eee A RO IE PH IEEE IIT TSE PE a
Re we

.

teachers, to

 

 

Coursrs or Srupy anp Leneru or Term 25

in large schools, where a teacher seldom has children of
more than two grades and the work is often department-
alized, what must it be in one and two room schools,
where one teacher either has all seven grades and a primer
class besides, or, at the very least, not less than three or
four different grades?! An investigation by the state
department in 1904 showed that where one teacher taught
all the required studies, the number of daily recitations
varied from thirty-five to fifty-five. At the present time
the usual number ranges from twenty-five to thirty-five ;
this allows about ten minutes for each recitation. A
teacher can do little in so brief a period. Moreover,

the situation is aggravated by the short school year
and irregular attendance. Naturally, the shorter the
term and the poorer the attendance, the less accomplished,
and the more studies attempted, the less achieved in
each.

In 1904, when the present course of study was first
issued, the specially chartered or city schools were the
only schools in the state that had an eight months’ term.
Of the 97 counties at that time, 30 had a school term of
less than four months, 51 between four and five months,
13 between five and six months, 1 between six and seven
Months, and 2 a school term of more than seven months.
Attendance was also poor; in the cities, 71 per cent for
White and 57 per cent for colored children, and in the
Tural schools 59 per cent for white children and 56 per
ent for colored. Thus, city teachers in 1904 even in
white schools had, on the average, approximately only
121 days and rural white teachers approximately 50
days to complete an annual program calling for an aver-

age attendance of ‘at least 144 days.? Obviously, the
We ye ee

In 1917, there were 4,681 schools with one teacher, and 2,147 schools with two

gether constituting 88 per cent of all the rural schools of the state.

Pe Presupposed an average daily attendance of 90 per cent and a school year of
ays,

 
    
 
 
 
 
 
  
   
  
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
   
 
   
   

 

 

26 Pusiic Epucation in Norru Carorina

course of. study of 1904 was ill adapted to actual con-
ditions. It was, in fact, little more than a goal to work
toward.

Judged alone by the length of the school year, the
specially chartered or city schools should now be able to
follow the state course of study. Rural conditions, ex-
cept in special tax districts, are, however, still unfavor-
able to this endeavor. Even in 1917 61 of the hundred
counties had less than a six months’ school. The recent
constitutional amendment will help, and yet it will doubt-
less be.some years before any large number of the counties
have an eight months’ term. Unless a simplified course
of study is prescribed, rural teachers will as a rule continue
to face impossible conditions—be called upon, as they
are, to attempt in six months what, it is officially acknowl-
edged, can not be accomplished in less than eight or nine
months.

Those in authority were not unaware of how poorly
the course of study of 1904 and its revisions met the actual
conditions, but they did not feel that they could begin
at the bottom and build up. With newborn enthusiasm
for education, the people demanded schools, and common-
ly supposed that one teacher, or certainly two, could cover
the elementary and secondary field. To dampen their
ardor by telling them that the simplest good high school
requires at least three teachers, and that a single teacher
with a four months’ school term could not possibly give
half of a good elementary education would have been
perhaps too discouraging. Nevertheless, the state su-
perintendent could not refrain from uttering a solemn
warning against attempting too much. In his report
for 1907, and frequently thereafter, he says:

“‘The law now wisely forbids the teaching of any’

high school subjects in any school having only one
teacher. It requires, however, the teaching of thirteen
subjects in these one-teacher schools. It is absolutely

 

 

  

Coursgs or Srupy anp Leneru or Term 27

impossible for one teacher, with as many children as are
to be found in the average rural school. in seven grades,
to do thorough work in so many subjects. It seems to me
that the number of required subjects should be reduced,
and that the teacher in every one-teacher school should
be required to devote more time—in fact, most of the
time—to teaching thoroughly these fundamental essen-
tials of reading, writing, arithmetic, and spelling. It is
folly to attempt the impossible. In my opinion, at least
the first four years of the elementary school with only
one teacher should be devoted almost exclusively to these
four subjects, sandwiching in just enough of geography,
mainly in the form of nature study, talks on everyday
hygiene, etc., to give a little variety to the course and to
furnish some foundation for a little more extensive work
in these and kindred subjects later.’’

Under present conditions it is not surprising that the
great majority of the rural schools can not and do not
carry out the state course of study.. Their actual study
program, while based on the state course, is extremely
narrow, particularly in the one room schools. It consists,
in Srades 1, 2, 3, and 4, almost exclusively of reading,
writing, spelling, and arithmetic ; Seldom indeed in these
grades is there instruction in drawing, music, history,
geography, physiology, or agriculture. The three R’s
are likewise proniinent in the day’s work of the more
favored pupils who reach grades 5, 6, and 7; however
attention is given in these grades to geography gad physi-
ology, and a little to history, with an occasional reading
lesson in agriculture. Cooking and sewing for girls and

e almost unknown in the white

these activities is frequent]
y at-
tempted under the direction of the Jeanes teachers in

i Schools. While a few counties are introducing
: edical Inspection, and two or three have play directors,
n most schools nothing is done for the physical life of

Schools, but a little in
LP a AT ffs nec POMP

 

 

 

 

28 Pustic Epucation tn Norru Caroiina

the children. It is generally agreed that the state should
provide for the children of the open country the advan-
tages of a diversified school program. But those most
competent to judge hold that it is impracticable to secure
everything in the small rural school. The excellent new
compulsory attendance law providing attendance officers
will better conditions, as also would a longer school year,
a simpler course of study and fewer grades, but these
will never do away with the need of consolidating small
rural schools wherever possible.

Even the larger rural and city schools have difficulty
in carrying out the present course of study. This is not
due to the shortness of the school year—for the school
year in such schools is usually eight to nine months—
but, in the larger rural schools, to the irregularity of
attendance, and, in the city schools, more particularly
to the shortness of the school day in the three lower
grades. Principally for these reasons, even in the larger
rural and city schools the first three grades rarely include
more than reading, spelling, language, writing, and arith-
metic, with a little singing and drawing.

More than this might reasonably be expected of the
cities but forthe shortened school day in the lower grades.
A single long session of three and a half to four and a half
hours, with thirty or forty minutes at noon for luncheon
at school, does not suffice for more.!. A school day of
this length and character is objectionable, first, on physical
grounds, because it violates well established laws of health
and of physical development, and second, on educational
grounds, because it makes impossible, owing to the lack
of time, a modern primary program, including, besides
the fundamentals, music, free play, physical education,

- handwork, and elementary school science.

1The average instruction time, in minutes, for the several grades in 52 of the
136 specially chartered districts was, in 1919-1920, as follows: 1st grade, 213; 2d
grade, 240; 3d grade, 265; 4th grade, 283; 5th grade, 287; 6th grade, 291; 7th grade,
298.

ee ee

dain nennssneiasnitii
NMP CE Pe ae

 

 

 

OLD TYPE MEDIUM SIZED RURAL SCHOOLS
 

 

’ Qourses or Stupy AND Lenetu or TERM 29

 

Reading, spelling, writing, and arithmetic also make up q
the bulk of the upper grade instruction in both the larger
rural and city schools, although considerably more time
is given in the larger schools to physiology, geography,
1 i and history, and occasionally something worth while is
| done in agriculture. In a few drawing receives commend-
b able attention; in still fewer manual training is provided
Tl for boys and cooking and sewing for girls—more fre-
quently, however, in colored than in white schools. Free
play and physical education are neglected, with some
) notable exceptions, among which are Asheville, Winston- i

| Salem, and Wilmington. , i)

Purim ProGRrEss IN THE ELEMENTARY ScHOOL

| How successful the elementary schools are in carrying |
| out their narrow and formal course of study will be con- '
| sidered in the chapter on instruction. In this connection,
. we must point out the immediate consequence of a short-
ened school year and poor attendance when promotion is
bp based on standards that presuppose good attendance
during a longer term. Obviously, large numbers of pupils
must, under these conditions, fail to pass. They there-
fore either drop out of school or repeat the grade in
which they fail.

If children entered school at about six years of age,
and advanced regularly, there would be almost as many
children in one grade as in another, and all the children
in the same grade would be about the same age. As a
matter of fact, approximately a third of all the children
in our rural white elementary schools are in the first grade,
and approximately a half in grades 1 and 2.'_ The ages
of a single class in these grades often range from kinder-

---

| 1Tke rural school enrollment by grades for the state is not available. We have
i} this for four counties. For the age-grade distribution of Guilford County, see
Page 30.

 

 

 

  

“i ea: ny se
nee Sk lel
ceerhieenieeienieieneeieianen nian

Sa 4 dil i = 4 sl tana
ee — See ain . : — se ee
RRL a ERATED 2 REAR LG SET BLS EE EPR ee CNN HR ES NLP # MR Sure Gee tet irc a
 

 

 

 

EP REE MNS

30 Pusiic Epucation in Norrn Carona

garten to first year high school. For example, one primary
class was made up as follows:

2 children six years of age
4 children seven years of age
3 children eight years of age
6 children nine years of age
2 children ten years of age
1 child eleven years of age
1 child twelve years of age
1 child thirteen years of age

The congestion of children in the lower grades, and
the striking difference in the ages of children in the same
grade, clearly demonstrate that’ children do not pass
smoothly through the schools, going at regular annual
intervals from one grade to the next. They mostly re-
main in each of the three lower grades two and sometimes
three years, and it is not uncommon for children to spend
two or three years in a higher grade.

How far in the school rural white children on the aver-
age actually advance it is impossible to state with ‘cer-
tainty. The data at hand! suggest that approximately

1AGcE-Grape DisrrisuTion or Wurte Pupiis In GUILFORD County, Junn, 1920

  

 

 

 

 

 

 

 

 

 

 

AGES

GRADE Total

5] 6] 7 | 8} 9 |10)11] 12] 13} 14] 15 | 16] 17 }18]19]20/21
ie ss ala gal Retire: al 23/465)/463/341/174| 91] 37] 21] 12] 2] 3] 4] 1 1,634
Beye es Shee 4) 61/207|168)117| 54] 34) 17) 14] 2 1} 1 680
Tiny see CbkEn ARs weieL 1) 6] 70|149]185/105} 74] 42) 13] 6} 1 652
Ppt ne oe RS pa 7} 63}128]176/125] 77) 29] 13] 5 623
DS ctu sank Sis okt 1} 6} 50)124/132] 87) 45] 18} 6} 2/1 472
Gs ee ee 5) 38) 98/124! 93] 55) 29] 8] 4] 1 455
Padwas tice Ce oewesdae 2) 25] 56] 68] 67] 48] 23) 9} 4] 2 304
Total Elementary |23/470|530|626|560|576|536/509/415|264/164| 90] 35/15] 5 2 4,820
lat ie: st st. 1} 10) 20} 24) 31} 29} 3) 4 122
20 1) 5} 7} 29) 19]10] 1) 1 73
So Fgh. ects. 1) 4) 4) 12) 7] 5) 211 36
4th High. 6 5 3] 7/10) 5) 6] 7 38
Total High..____- 1] 11} 26) 35] 67) 67|/30/15] 9] 8} 269

 

 

 

f 31
Courszs or Srupy anp Leneru or TERM

50 per cent of them never go beyond the sixth grade.
That is, about half the children miss altogether the richer
portions of the school program, including literature,
advanced geography, history—studies that make for per-
sonal and civic ideals. Their entire school life is thus
Spent in the mastery of the mere technique of reading,
writing, and arithmetic, and even this they accomplish
sometimes with so little success that after a few years
out of school some may be classed as illiterates. a
Conditions in the cities are better, but even in the cities
there is sad irregularity in pupil advancement. For eX-
ample, in June, 1919, some thirteen year old white chil-
dren were found in the first grade, while others of the same
age had reached the third year of high school—a gross
difference of nine years in school progress among children
of the same age. In fact, the 3,934 thirteen year old
children of the larger cities of the state were, in June,
1919, scattered among the different grades as follows:

21 in the first grade
45 in the second grade
137 in the third grade
285 in the fourth grade
689 in the fifth grade
1,042 in the sixth grade
1,056 in the seventh grade
552 in the first year of high school
101 in the second year of high school
6 in the third year of high school

If these thirteen year old children had all entered
School at the same age and had advanced regularly,
None of them would be below the seventh grade; as
it is, over half of them are below that grade. ‘

At the same time 14,750, or 37 per cent of the entire
elementary school enrollment of the larger cities, were
behind the grade they should be in for their age. Of

 

 
 

 

552

10]

| ie
I I I

Distribution of White Thirteen Year Old Children of Cities, by Grades

these, 7,745 were behind one grade; 4,110, two grades;
1,805, three grades; 744, four grades; and 346, five or
more grades.! In their discouragement, they leave school
altogether; approximately 25 per cent of all the children
of the larger cities drop out before they are fourteen years
old, and approximately 35 per cent never go beyond the
sixth grade; they therefore enter on the duties and obli-
gations of personal and civic life in command only of the
rudiments of the three R’s.

With approximately half of the white rural population
and approximately a third of the white city popula-
tion with a sixth grade education or less, and this, as we
shall see, of poor quality, we face a serious situation, call-
ing for heroic action. The rural school year and the city
school day should be lengthened; all children, rural and
city, should be gotten into school as soon after six years

1See footnote on following page.

 

 

  
  
   

33
Coursrs or Stupy anp Leneru or TERM

of age as is possible, and kept regularly in ee ;
small rural schools should be consolidated, and an e
mentary course of study better adapted to prevailing

rural conditions should be provided.

Tur HiaH Scuoot Course or STUDY

The high schools are laboring under similar unfavor-
able conditions. When, in 1908, the high school became
a recognized part of the general school organization, wa
were in operation 132 county and 81 city or town hig
schools, a total of 213. Ten years later, 1918, the county
high schools numbered 209, the city or local, 149, a total

 

 

' June, 1919
1A GEn-GRADE DISTRIBUTION OF WHITE Pupits IN THIRTY-FIVE Cities, Jun 1

Total

15 | 16 | 17 | 18] 19 }20/21

 

8,566
6,181
6,150
5,478
4) 158)1249) 1638/1184 5, 356

9| 125] 867|1442/1042 —
7| 113} 746/1056 ’

 

 

 

11] 4} 2} 2,839
180} 71} 16} 3} 3) 1,903
311/103) 34] 3] 1) 1,254

326|171| 60/19) 4

 

968/395/121]29/10) 6,883

 

 

 
 

 

 

Mitt

 

 

 

 

 

 

34 Pusiic Epvcarion rin Norru CaroLina

of 358. There were, in addition, literally hundreds of
one and two teacher elementary schools giving some high
school instruction.!
If all these high schools were well. maintained, well
organized, and well equipped, the state would indeed
be well supplied. But is it? Moved by community
rivalry and spurred on not infrequently by an ambitious
principal or teacher, each considerable community wants
its own high school. Its school must offer as extended
a program, attempt to do as much as any neighboring
school, irrespective of obvious differences in resources,
such as building facilities, length of term, number of
teachers, and equipment. The result has been needless
multiplication and the establishment of scores of high
schools under unfavorable conditions. The establishment
of high schools under unfavorable conditions is in itself
not significant, for the way to begin is to begin; but the
overweening ambition of high schools unfavorably cir-
cumstanced is indeed a matter that demands attention.
We do not wish to lay down the conditions that should
control the establishment of high schools and what they
should attempt. There are, however, well defined re-
quirements, as respects length of school year and the

number of teachers to be employed, generally recognized
as essential to the satisfactory conduct of a standard
high school, that is, a high school offering a four year
course of study. As suggested by the state school author-
ities and laid down later by the University of North
Carolina, these essential requirements
ly as follows: a high school year of from thirty-two to

thirty-six weeks, a four year course, and not less than
three full time teachers.

are approximate-

Few schools in 1908 could meet these standards, and

only a few reported four year courses—five in the counties

1The high school inspector estimated the number in 1908-1909 at 800, and doubt-

less the number is quite as large now.

 

 

 

 

 

     
 
     
    
   
    
     
   
       
     
  
 

 

 

 

 

 
  
    
      
    
 
    
    
       
     
 
   
   
   
   
     
        
    
     
  

OLD TYPE MEDIUM SIZED RURAL SCHOOLS

   
 

 

 

 

 

 

 

Dee ran OO ee ee ee ee

‘single teacher.

 

Courszs or Stupy anp Leneru or TERM 35

and nine in the cities and towns. In 1918, 127 in the
counties and 98 in the cities and towns carried four year
programs. Of these only 30 in the counties and only 74
in the cities and towns had terms of thirty-two to thirty-
six weeks and three or more teachers. While it is there-
fore correct to report North Carolina as having a total of
358 public high schools, there are in the entire state prob-
ably not more than 104 capable of giving four years of
satisfactory high school instruction, even though there are -
225 which attempt four year programs. On the basis of the
accredited high school list of the University of North Caro-
lina, 12 counties have both city and rural standard four
year high schools; 3 counties have only rural; 46 have only
city; and 39 counties have neither rural nor city; that is,
85 counties have no standard rural high schools. This
woeful lack of standard rural high schools largely explains
why the National Bureau of Education ranks North
Carolina third from the bottom among the states in high
school enrollment. Much progress has, indeed, been
made in a decade, but there is a long way yet to go before
the state can be said to possess a sound or adequate high
school system. Es
In considering the high schools, it should be remembered a |
that each specially chartered district, until 1919-1920, bore a ii
the entire expense of its high school and its will was law. om
Each was free, if it so desired, to establish a high school, a
to adopt its own course of study, determine the length ae |
of the course, fix the length of the high school term, and a |
employ such high school teachers as it saw fit. Under
this reign of high school freedom, all kinds of city and cf
town high schools grew up. Some have two, some three, +
and some four year courses;-the high school term ranges a
from twenty-eight to thirty-eight weeks, and 4 have a A

 

Of the rural high schools, the state authorities have .
had supervision, until recently, of only those receiving e

 
    

 

 

 

 

 

 

 

 

 

36 Pusiic Epucation 1x Nortu Carorina

state aid—the so-called county high schools. The reg-
ulations imposed on these county high schools have had
to do chiefly with their establishment and the granting
to them of state aid. Owing to their rapid development
and the many problems related to their establishment,
it was impossible to supervise them closely, although
as much as possible was done to regulate their organi-
zation and to promote their efficiency.

For the use of county high schools and for any others
that might choose to adopt them, three courses of study
were outlined: (1) a classical course; (2) a Latin-scientific
course; and (3) a modern language course.! These are
all four year courses, calling for a thirty-six week school
year. These outlines conform to good high school prac-
tice and remain much today as when first prescribed.

In undertaking to carry four year standard courses, the
high schools of the state, whether county or city or town,
were in about the same position as the elementary schools
when they attempted corresponding standard courses;
that is, the high schools were greatly disadvantaged by
shortness of term, lack of teachers, and inadequate equip-
ment. For example, when these standard courses, calling
for a thirty-six week high school term, were first outlined
in 1907, only 40 of the 177 public high schools reporting
had thirty-six week terms, and as late as 1917-1918 only
47 of the 358 could boast a school year of such length.
Thus, through all these years, the majority of public
high schools have striven to do a third to a fourth more
in a given time than is commonly undertaken, and they

have attempted this, too, with pupils who have had only

a seven year elementary training.

Moreover, in most instances, the inadequacy of the
teaching force still further lowered the quality of the

1A country life curriculum and a farm life curriculum were subsequently pro-
vided, to be used in farm life schools and in high schools that have agricultural
and home economics departments.

SL a OR oy

Coursres or Srupy AND LeNGTH OF TERM 37

instruction. The state authorities suggested in 1910 that
high schools with one teacher should not attempt. more
than a two year course. If no electives were offered,
two teachers might undertake a four year program, but
if electives were offered, three teachers were held to be
required In 1917-1918-almost a third of all public high
schools had less than two teachers. Yet few of these
schools limited their program to two years; a majority
carried three year and some attempted four year programs.
On the other hand, very few two teacher schools fail to
offer electives, so that we find two teachers generally
attempting what state school authorities hold should not

be undertaken by less than three.

The Latin-scientific course is usually found in one
teacher schools; schools of two or more teachers generally
offer both the Latin-scientific and modern language
courses, while farm life schools and schools having agri-
cultural and home economics departments follow either
the farm life or rural life curriculum, and offer, besides,
the Latin-scientific course. But whatever the course
supposedly followed, outside of a half dozen farm life
schools, a score of county schools having agricultural
and home economics departments, and fifteen to twenty
of the largest city high schools, all the rest teach in vary-
ing proportion about the same things, chiefly Latin,
English, mathematics, and modern languages, with some
history and a little science. For example, in 1917-1918
14,993 children studied Latin, as against 2,688 in Ameri-
can history and 217 in North Carolina history. At the
same time 3,368 pursued French, as compared with
3,820 in home economics, 1,037 in agriculture, 1,453 in
physics, 656 in botany, and 108 in sociology. Greater
emphasis on history and civics, on home economics,
agriculture, and science—in a word, on the more modern
and the more practical activities—is much to be desired.
The colleges of the state have also a duty to perform in

21158

 

 

 

\
i

 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

  
 
 
 
 
 
  
 

 

 

 

 

 

 

i
i

t

 

 

 

 

 

;
F
f
}
{
i
:

 

 

 

 

  

38 Pusiic Epvucation 1n*Norru Carona

this connection, for much of the emphasis upon the more
formal studies by the high schools is due to the character.
of the prevailing college entrance requirements.

State authorities have not been unmindful of these
unsatisfactory conditions. They have earnestly dis-
couraged the organization of small rural high schools; but
in these efforts they have been greatly handicapped, for
the high school law of 1907 permitted the organization
of county high schools on impossible terms. The local
community had only to raise by taxation, private sub-
scription or otherwise, $250 annually for instruction—
to be duplicated by the state—and to maintain a seven
months’ high school term. On such simple conditions,
as many as four so-called state high schools might. be
established in any one county.

As a substitute for the small high school, state authori-
ties urged the establishment of county farm life schools'‘\—
a central high school to serve the entire county. At the
present time there is only one such school in the state,
that in Craven County, although there are a few others
that serve a county-wide purpose. To the same end,
the way was opened for the establishment of special de-
partments of agriculture and of the household arts.?
Twenty-nine high schools in twenty-two counties now
have such departments, and by reason of the Smith-
Hughes funds available for industrial work the number
will doubtless increase rapidly in the immediate future.

A decrease in the number of small high schools is much
to be desired. An efficient high school can not be main-
tained at every crossroad; the cost is prohibitive. The

time is undoubtedly at hand when every county should °

be laid off into high school districts, each large enough
to warrant development of a high school with not less

1The law permitting the establishment of such high schools was enacted in 1911.
*The Guilford County Farm Life School Law, making possible the establishment

of such departments, was passed in 1911, and made applicable to all the counties
of the state in 1913.

  
  

 

 

      

   

Jounston County

 

RicuMonp CounTY

NEW TYPE MEDIUM SIZED RURAL SCHOOLS

 

;
’

'

 
 

 

 

ae ee cence eee ner ae comme ever ater eee RET AINE ET
ie RRND aie de:

Coursss or Stupy aNp LenerH or TERM 39

than five or six teachers. For boys and girls living beyond .

reach of a district high school, dormitories should be
erected at a central school, thus offering at a minimum
cost good high school advantages to all the children of
the county.

State school officials have also labored in other ways
to improve the situation. In 1917 the high school law
was so revised that it prohibited the granting of state
aid to any rural high school having an average daily at-
tendance of less than twenty pupils, and the amount of
state aid above the minimum of $200 to be granted to
any school was conditioned, first, on average daily at-
tendance; second, on the number of full time high school
teachers employed; and, third, on the grade and character
of the work done—powerful incentives to improvement.
The state board of education also evolved a compre-
hensive plan for classifying rural high schools, so that
each might know its ranking as determined by its re-
sources and the quality of its instruction. The war,
however, interfered with the execution of this plan.

In the meantime, a new epoch in high school devel-
opment has dawned. A supreme court decision of 1917
made the high school an integral part of the public school
system, so that high schools may be supported hereafter
by public taxation in the same manner as elementary
schools. Carrying out the spirit of this decision, all
former distinctions were abolished in 1919 between state-
aided or county high schools and other high schools,
such as local, city, or town. The state now shares equally
and alike in the support of all. The high schools are
now also to have the entire time of the state high school
inspector, attached to the state department of education.

Sharing as the state now does in the financial support
of all high schools, its supervisory authority should be
exercised over all—rural, city, and town. High school
instruction should be completely eliminated from_one,

7

 

 
     
  
 
 
 
 
 
  
  
 
 
  
 
  

 

 

 

 

 

40 Pusuic Epucarion iv Norra Carorina

two, and three teacher elementary schools; small high
schools should be abolished and the development of large
district high schools insisted upon; schools should be
limited in their curricula on the basis of the length of
term and the number of teachers employed, and they
should be classified and ranked according to their re-
sources and the grade and quality of their instruction;
courses of study should be devised particularly adapted
to the needs of rural children and to working conditions
that obtain in the rural high schools. All high schools
should use the same record system. The state should
issue all diplomas, and these should show precisely what
the pupil has done, and the rank and grade of the school.
And the non-technical colleges of the state ought to pro-
vide a general college course to which graduates of stand-
ard high schools may be admitted without condition,
irrespective of the particular high school course pursued.

 

 

IV. THE TEACHERS

even such great handicaps as poor buildings,

inadequate equipment, short school terms, poor

7 he hope
i ted courses of study. T
sr mentally in its teachers.

(5 = TEACHERS are able to overcome partly

attendance, an ; aoe
of a state lies, therefore, tu
If its teachers dn superior, the work of the schools, even

under adverse conditions, may be fairly erst
If, however, its teachers as a body are ill prepare -
inexperienced, then a state has little reason to expe
efficiency. What is the preparation and experience 0
our teachers?

The general situation is easily deseribed. Of the gor
white teachers and principals in service In 1919-1920, only
2,549, or 20 per cent, hold professional certificates, that
is. certificates showing satisfactory training for teaching.
On the other hand, only 245 of the 3,690 colored teachers,
or 7 per cent, hold such certificates and can be said to
be properly prepared for their work. :

However, any statement about the preparation of
teachers should also take account of the actual grade of
school work they have completed. After repeated efforts
detailed information as to preparation. and experience
was procured from 9,800 out of 11,712 white teachers,

and. from 2,357! out of 3,251 colored teachers in service
in 1918-1919.

PREPARATION OF CoLORED ‘TEACHERS

From the data sought, it should have been possible
to determine the number of teachers who had not gone
further than the elementary school, the number stopping

1The Jeanes teachers or colored supervisors are included in this number.

[41]

 

 
  

 

 

 

 

 

 

 

 

 

 

 

Si a

 

42

 

Pusric Epucation my Norrn Carorra

with the high school, the number taking full normal
school courses, etc. But in the case of the colored teachers
the data obtained could not be satisfactorily tabulated.
A teacher might report, for example, that she had attended
college for a given period, but from the facts furnished
we were often unable to determine whether she was in
the elementary, the high school, or the college depart-
ment; or she might report graduation, but we were gen-
erally unable to tell whether this was from the college
proper or from the preparatory school.

Roughly tabulated, the returns from the 2,357 colored
teachers reporting show their schooling to be as follows:

 

 

  
   

  

Schools
Outside Total
the State

. Private
Schools
in State

Public County
Elementary | Training | Training
School Only | Schools Schools

       
 

      
     
  
   
 
 

  

 

 

 

   

 

 

Attending 406 10 197 667 134 1,414
Attending
and
graduat’g! + 140 943

274 2,357

" From these data it appears that 17 per cent of the
colored teachers have not gone further than the public
elementary school, that 43 per cent have probably had
more than an elementary schooling but less than a high
school course,? that 35 per cent have had probably the
equivalent of a high school education,’ and that 5 per cent
have graduated from schools claiming college rank.

 

1Six reported graduation from the Agricultural and Technical College; 13 from
Biddle; 73 from Shaw; 2 from Fiske; 15 from Hampton; 2 from Howard; and
& from Tuskegee.

*This is on the assumption that teachers reporting attendance at schools other
taan public elementary schools have done work of high school grade.

*This is on the assumption that all the schools reported, except those enumerated
in note 1, are of high school grade.

PRR AES RRO So I ETS R: Po yee pp Es PRET ate orem ot

 

 

43
Tur TEACHERS

eturns made by white teachers
high school teachers reporting
ximately as follows:

The tabulation of r

j 88
was also difficult. The 8
show education and traming appro

Number Per Cent

Part high school---------- oe
Full high school - --------- . "
Part normal school-------- :
Full normal school-------- Po Bes
Part college-------------- on ne
Full college or more------- cs

Unclassified and unknown - 13

PART | 3
NORMAL SCHOOL

FULL | 26
NORMAL SCHOOL ‘

oa

UNC tT ee 13

Fieurs 5
Preparation of White High School Teachers

These figures indicate that 59 per cent of the high school
teachers yeporting had four years in college or more,
sufficient, if bona fide college work, to enable them to
meet the usual minimum standards for high school teach-
ing. But 7% of those reporting four years in college are
graduates ot what are known as ‘‘B’’ or non-standard
colleges, and have not had full college courses. If these

 
 

 

 

 

 

 

 

 

 

 

 

 

44 Pusiic Epucation in Norrn Oarorina

non-standard college graduates are eliminated, it leaves
North Carolina, on the basis of our returns, with 50 per
cent of its high school teachers able to meet the usual
requirements for high school teaching. We are, therefore,
certainly within the facts in saying that at least a half
of all the high school teachers of the state are without
adequate preparation. At that, the high school situation

is encouraging, for such a proportion of unprepared high
school teachers, while lamentable, is not uncommon.

PREPARATION OF ELEMENTARY TEACHERS

The returns from the elementary teachers show their
education to be as follows: /

Number Per Cent

Elementary school only___- 580 6.5
Part high school__________ 2,418 27.1
Full high school____+_____ 1,613 18.1
Part normal school________ 324 3.6
Full normal school________ 565 6.3
Pert college 2222 © 25.0

RO VOMNE Ss cates ote ee 907 10.2

2 Tae AS Qe ea ha 827 9.3

O YOais Sai eee 488 5.5
Full college or more_______ 793 8.9
Unclassified and unknown - 397 4.5

   

The outstanding fact about these returns is the large
proportion of elementary teachers who have received
their training in college—approximately 34 per cent.
This is unusual, but the explanation is simple. Colleges,
particularly private colleges with preparatory depart-
ments, have for years been relatively numerous, and
many of them claim to prepare both elementary and high
school teachers. It is thus natural that our teachers should
enter the profession by way of the college, and not by
way of the normal school—a reversal of common practice,

From the returns themselves it would appear that
almost a third of the white elementary teachers reporting

j
‘

 

 

     
  

45
Tur TEACHERS

. : ts f
are ab e Ss ] minimum req uiremen or
1 to meet the usua :
ary .
wO y ears of normal school tr alning or the equl V alent

i 565 reporting
ime i these are included
paaagee en eal school, 827 reporting two

two years or more in ie he
an in college, 488 reporting three years,
80
ELEMENTARY Es 5
oak 2418
PART
ook
HIGH SCH ay
FULL
‘i 10
PART et 324
NORMAL SCHOOL
om | a
NORMAL SCHOOL
Ease oT
ONE YEAR 9
COLLEGE
TWO YEAR 65.7
COLLEGE

THREE YEAR Fesa 4883
COLLEGE
COLLEGE
UNCLASSIFIED Ea 397

Fiaure 6

Preparation of White Elementary School Teachers

reporting four years or more. If, however, we analyze
the preparation of the 565 teachers reporting two or ~
years in normal school, we find that only 167 of t ei
have had really standard training, that is, normal —_
training based on graduation from a four year high schoo ;
Again, probably not more than 512 of the 827 reporting

  
 

 

 

 

 

 

 
 

46

 
  

Pustuic Enucarion nv Norru CaroLina

two years in college have had the equivalent in time of
two years above a standard high school.

But the length of the training of these elementary
teachers reporting college attendance is not the only

question involved; more important is the character of
their training. Good elementary teacher training in-

volves concentration on the subject matter and methods’

of teaching the common school studies—reading, spelling,
writing, arithmetic, geography, history, etc. The time
of college students is consumed mostly by English, ancient

and modern foreign languages, and mathematics. Even
if college students elect professional work in the junior
and senior years, this has to do usually with teaching in
the high school rather than in the elementary school.
College trained teachers thus enter the elementary schools
as a rule without adequate professional preparation for
the work they undertake, so that they can not ordinarily
be reckoned as well trained elementary teachers.

But let us put aside all questions as to the ability of
the ordinary college to train elementary teachers, and
accept as meeting the usual elementary standards the
793 reporting four years or more in college, the 488 re-
porting three years, the 512 out of the 827 reporting two
years, and the 167 of the 565 reporting two years or more
in normal schools. These together make a total of 1,960,
equal to 22 per cent of all reporting, that might be reck-
oned as well trained. On this basis it would appear
that approximately four-fifths of all white elementary
teachers now in service are without adequate preparation.
Of these four-fifths, about 43 per cent, or a third of the
entire elementary teaching body, are woefully unpre-
pared, having attended only an elementary school or
having gone only a short way in high school. The great

majority of this last named group are in the rural
schools. ;

   

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
  
  
   
  
      

:
o }
i

 

  

Tux TEACHERS 47

EXPERIENCE, TENURE AND AGE OF TEACHERS

Our teachers are likewise inexperienced. Of the yee
teachers reporting, a half have served less than bt fiers b
a fourth between five and nine years, pr werd . -

j ools ten years or more. .
fegureiaetee than city teachers. Of the rural pars

j ht less than five years, an
reporting, 54 per cent have taug ad nls
20 per cent were in their first year, whereas in a pe nod
chartered districts, only 36 per cent have served ie me
five years, and only eight per cent were teaching for the
first time. Colored teachers are somewhat more a
perienced than white teachers, and yet 11 per cent o

reporting were beginners.
een <a are also extremely mobile, that is, they
move freely from school to school, with the result they
are seldom anchored at one place long enough to know
either pupils or parents, or to become identified with
the interests of the community. For example, 52 per
cent of all white teachers reporting were in new posi-
tions, which means, with only 18 per cent of them .be-
ginners, that approximately 42 per cent of all old teachers
had taken new positions in 1918-1919. Rural schools
as usual suffer most. Fifty-five per cent of the rural
teachers reporting were in new fields, so that with only
20 per cent of them beginners, approximately 44 per cent
of the old teachers must have shifted, as compared with
approximately 35 per cent in the cities. It is, therefore,
not surprising that only 10 per cent of all white teachers
have been in their present positions five years or more.
Colored teachers appear to move a little less frequently.

On the other hand, we have few immature teachers.
Out of the 888 high school teachers reporting, only 24
were under twenty-one years of age, and all but 54 of

the 1,518 city elementary teachers were twenty-one or
over. As might be expected, the percentage of immature
teachers is highest in the ‘rural schools, but even there

 
  

 

 

 

 

 

48

  
 

Pusziic Epucation 1n Norrn Carorina

only 19 per cent of those reporting were under twenty-
one. In the colored schools less than 10 per cent might
be called called immature.

TEACHERS’ SALARIES

There are three obvious reasons why approximately
half of the high school teachers and approximately four-
fifths of the elementary teachers are unprepared, and
why the teaching body as a whole is inexperienced and
unstable. The prime reason is the low salaries paid.
Teachers’ salaries are low everywhere, but those in our
state have for years been almost the very lowest in the
United States. Even as late as 1917-1918, the average
annual salary of rural white teachers was only $276, and
of rural colored teachers $140. At the same time city
white teachers received annually on the average only
$532, and city colored teachers $276. Even at these
salaries, teaching to some was undoubtedly a serious
business, but for the great majority it was merely a
makeshift, to be followed until something better turned
up.

The legislature of 1919 attempted to meet these de-
plorable conditions. The salaries of teachers holding
county and city certificates (second grade certificates)
were raised from $35 to $45, and the salaries of those
holding state certificates were increased from 10 to 25
per cent. Despite these increases, the salaries of most
teachers remained pitiably low, particularly in the rural
districts. For example, the average annual salaries of
rural elementary teachers for 1919-1920 were as follows:
white, $430; colored, $295.

« The salaries provided by the legislature of 1919 were
neither sufficient to prevent the further depletion of
the teaching staff, nor to induce young people to enter
the profession. Far-reaching measures were necessary
if the schools were to be saved from the impending crisis.

 

 

 

 

   

Pirr County

 

Pox County

NEW TYPE MEDIUM SIZED RURAL SCHOOLS

 
 

49

Tur TEACHERS

The efforts of those in authority to meet this critical
situation culminated in the legislation of August, 1920.

This legislation is a long step forward. First, the
salaries guaranteed are closely linked, in each instance,
with prescribed academic and professional preparation.
The longer and more specialized the training required,
the larger the initial salary guaranteed. For example,
holders of county and city certificates (second grade cer-
tificates) are guaranteed only $45 a month, whereas
properly trained elementary and high school teachers
are guaranteed an initial monthly salary of $90 and $100
respectively.

Second, all teachers holding state certificates are guar-
anteed for a period of four years after the first, an an-
nual increase of $5 per month. These guaranteed an-
nual increases, small as they are, along with the guaran-
teed minimum initial monthly salary, will do something

\
to hold teachers in service, and to prevent them from

 

 

shifting from school to school.

 

Tue CERTIFICATION OF TEACHERS

 

The prevailing way of certificating teachers has also
contributed to the present unpreparedness of the teaching
body. A certification system, well devised and executed,
can do much, by holding right standards before teachers,
to stimulate proper preparation. But with salaries low,
with little distinction in pay or otherwise between the
trained and the untrained, with teachers scarce, our cer-

i tificating authorities have been able to do little to foster
i teacher training, while the conditions under which certifi-
cates were issued minimized even the little they could do.

Prior to 1917 there were 237 gateways to teaching.
Certificates were issued by 100 county superintendents,
136 superintendents of specially chartered districts, and
the old state board of examiners; and, of course, there
were as many standards as there were certificating bodies.

 

 

 

 
    

 

 

50 Pusiic Epucation 1n Nortn Caronina

To correct this chaotic condition, the present state
board of examiners and institute conductors was created
in 1917. The bill creating this board was a compromise.
The county and city superintendents were left supreme
in the field of second and third grade certificates, thus
keeping alive 236 different certificating authorities. The
influence of these local authorities is-great, for over a third
of the entire teaching force hold certificates issued by
them. To be sure, the state has for years discriminated
in salary against holders of such certificates; neverthe-
less, the relative number will doubtless be large for years
to come.

Despite the large proportion of teachers thus certifi-
cated by local authorities, there is not now a single line
of law or regulation governing the issuance of such cer-
tificates; that is, laws or regulations prescribing the sub-
jects in which examinations shall be held, periods of
validity, and conditions of renewal. Each superintend-
ent is a law unto himself. The result is that certifi-
cates of these grades are often handed out by superin-
tendents without even the semblance of an examination.
When certificates can be had for the asking, obviously
there is little incentive to thorough preparation. Quite
properly the holders of such certificates are called the
‘fost third’’ of the teaching body, and they will doubt-
less remain ‘‘lost’’ until brought under the supervision
of a central board.

On the other hand, the law of 1917 gave the state board
of examiners and institute conductors control of all cer-
tificates above second and third grade. However, it
was understood that holders of certificates from the old
state board of examiners and all holders of first grade coun-
ty certificates should receive new state certificates without
examination. This ‘‘gentlemen’s agreement’’ extended
also to certificates issued by the superintendents of spe-
cially chartered districts. Under this agreement the state

 

/
4
é
7
.
i
at

made haaaiieientaeniiaaas

   
  
 
 
 
 
     
   
   
   
   
   
   
   
   
   
   
   
   
   
   
   
   
     
      
     

. and professional requirements for

Tur TEACHERS 51

board has issued to the holders of all such certificates
a state certificate of the — pes a ee"!
the respective city § 2
ip that holders of old state certificates _
receive new state certificates of equal tenure and validity,
but it was surely unwise to tie the hands of the oe
board of examiners, aS Was done in the case of hol a
of first grade county, certificates and teachers in specially

chartered districts.
The new state board of examiners was thus gravely

handicapped at birth, and it faced an impossible oe
besides. A thoroughgoing certification system is effec-
tive only when salaries are attractive. When salaries
are deplorably low, the standards for certificates ~ up
by the state board of examiners must of necessity be -
respondingly low; hence, efforts that can be made under
these conditions to elevate teacher traiming avail little.

The board’s opportunity to do a piece of constructive
work came with the special session of the general assembly
of 1920, and well did they respond. Basing their new
certification scheme on the minimum colasiee woes

id down specific aca

by the new salary law, they laid - ne parang
of certificate needed in the entire school system. » These
requirements are defined in terms of work completed
im school, for which credit is awarded toward graduation
from a course regularly offered by the given institution.
Once a teacher obtains a standard certificate, she is
forever relieved from all further examinations or Pre-
paratory work. The former plan of allowing home and
reading circle work to count on renewals and on raising
certificates to a higher grade was abandoned. Non-
standard certificates may now be renewed or raised to
a higher grade only by actual school attendance either
in regular term or during the summer.

The new certification scheme is thus founded on well

shite ——

 

 
     

52 Pusric EpucaTion IN Nort CaroLina

 

nalts? atl

accepted principles, and is destined to exert a profound
influence for good. In the first place, it sets before the
people the-academic and professional preparation needed
by each kind of well trained teacher. To teachers them-
selves it makes clear the specific preparation required
to secure a given certificate. Prospective teachers,
expecting to enter the elementary schools, will no longer
study methods of teaching high school subjects, but will
focus their attention on the academic and professional
subjects prescribed for the particular elementary certifi-
cate which they desire. Similarly with prospective high
school teachers. Finally, the scheme incidentally points
the way for both public and private teacher training in-
stitutions. So little was formerly required of teachers
that the institutions of the state generally undertook to
train all kinds of teachers, with the result that teachers
were rarely well prepared for any particular field.) The
new certification scheme does not lay down specific teacher
training courses, but it does-prescribe the general re-
quirements of such courses. The effect of this will
eventually be that each institution will concentrate upon
the particular kind of teacher training it is best equip-
ped to do.

To carry this certification scheme to its logical con-
clusion, the salaries of teachers for each grade of certifi-
cate will, as we shall point out later, need to be made
still more attractive and to be placed on an annual basis.
Also, the certification of all teachers, even the lowest
grade of city and county teachers, should be put in the
hands of the state board of examiners. Thus to do away
with the other 236 certificating authorities is the surest
and quickest way to eliminate favoritism and chaos, to
reach the present ‘ ‘lost third,’’ and to elevate the entire
teaching force.

The mechanism provided for the operation of the new
certification system is seriously defective. As now or-

 

 

 

 

 

 

  

 

   

OLD TYPE LARGE RURAL SCHOOLS

 

   
 

 

 

 

ee

 

 

a

Tur TEACHERS 53

ganized, the state board of examiners and _ institute
conductors consists of six members, besides the state su-
perintendent, and the supervisor of negro and Indian
normal schools, ex-officio secretary. The $25,000 an-

nually appropriated provides salaries for the six regular .

members; but little remains for incidental expenses and
clerical assistance. The actual annual expense of
the board approximates $30,000. A far more effective
organization would be provided if a division of certifica-
tion were created within the state department of educa-
tion. At the head of this division there should be a
director, who should be provided with an ample clerical
force, and temporary help in the preparation and read-
ing of examination questions. Such an organization
would not only be more efficient than the present
organization, but less expensive; at the same time it
would free the remaining members of the present board
for other important work, for example, the supervision
of teacher training departments in high schools and
county summer training schools, which are so rapidly
displacing the old county institutes.

Tracuer TRAINING FactiitiEs}

Nothing can possibly take the place of liberal salaries
and a sound certification system in fostering proper teacher
preparation. Yet strong teacher training institutions,
readily accessible, will increase materially the number
of. well trained teachers.

Under present conditions, there are needed annually

approximately 150 new high school teachers, and approx- _

imately 2,000 new white and 350 new colored elementary
teachers, merely to take the place of those who yearly
leave the system. These numbers take no account of
the new county and city superintendents and the new
supervisors annually required, and they would be greatly
augmented if any consistent effort were made to reduce

Fi I ARS TI

    
  

 

 

 
 

   

54 Pusuic Epucation rw Nortn Carorina

the present proportion of ill prepared teachers. On the
other hand, it must not be forgotten that the teaching
.body tends to become more stable, as it is more highly
trained.

If both state and private institutions are considered,
the present high school teacher training facilities answer
fairly well and could be made adequate for immediate
needs. The State University should furnish at least 25
high school teachers annually, and the North Carolina
College for Women, 50. Seven private ‘‘A’’ colleges
having educational departments graduated from these
departments in June, 1919, 71 students who expected
to teach. Altogether there are now available approxi-
mately 150 high school teachers annually, and doubtless
this number will increase under the spur of higher salaries.
Probably few of these graduates could at the moment
meet the requirements of the highest high school certifi-
cate in the new certification scheme. It would, how-
ever, be a short step for most of these institutions so to
strengthen their professional high school courses that
their graduates could qualify for the certificate in question.
Moreover, the ‘‘B’’ colleges, for reasons to appear later,
will doubtless train more high school teachers in the future
than in the past. This will further increase the supply,
even though these ‘‘B’’ college graduates may not be
able to secure the highest grade of high school cer-
tificate.. The prospect for an abundant supply of well
trained and fairly well trained high school teachers is,
therefore, promising.

The elementary teacher training problem is not so
easily solved. In the past certain of the private colleges,
particularly those of ‘‘B’’ grade, trained elementary
teachers. Students doing chiefly regular college work can
not now meet the requirements for high grade elementary
certificates as laid down in the new. certification scheme 5
such work counts to greater advantage toward a high

ne RSS Stee

id

Tur TEACHERS 55

school certificate. In a word, under the new a
scheme, college students can obtain higher — “
teaching in high schools than in elementary schoo Es, 0
for this reason they will receive higher salaries as ~
school teachers than as elementary school teachers. e
will therefore tend to abandon elementary teacher
training in favor of the preparation of high din
teachers. Hence, private colleges are no longer ’ ;
counted among the elementary teacher training asse 0
the state. There is, however, one private Re 3
which may be so counted—the Normal and Col mr e
Institute at Asheville, which graduates about 50 ele-
mentary teachers a year and has trained 165 elementary

chers now in the field. ae
Bi the other hand, the state supports four asere eae
devoted wholly or in part to the training of elemen ni
teachers—the North Carolina College for Women, ys
East Carolina Teachers Training School, the Appalac ;
ian Training School, and the Cullowhee Normal an
Industrial School. To what extent are these pan gr
able to meet the elementary teacher training needs 0
the state? As pointed out above, the elementary ee
now require approximately 2,000 new teachers ary. “a
merely to fill the places of those who drop out. :
teachers now in-service, graduate and non-graduate, who
received their major training in these state supported
schools aggregate only 1,262.1. These 1,262 saat
the combined product of all these institutions ‘nd
years, thus barely equal three-fifths of the new teac ers
required in a single year. Nothing could depict Peet
clearly the utter inadequacy of the present se tani
for the training of elementary teachers, unless it be the

colleges

10f these, 755 received their major training at the North eee beanie od
Women; 389, at the Bast Carolina Teachers Training School; 43, at - ner a
Training School; and 75, at the Cullowhee Normal and Industrial School.

    

od

ys

 

 

 
56 Pustic Epucarion in Norrn Carona

further fact that all these institutions together graduate
less than 200 elementary teachers a year, scarcely a tenth
of the number now needed.

Within the last year several high school teacher train-
ing departments have been established—twelve in all.
Such departments usually take tenth and eleventh grade
high school pupils and give them simple, practical in-
struction in teaching as a part of their high school course.
County summer training schools have also been generally
organized, offering a six or eight weeks’ course to pros-
pective teachers. These are valuable means of giving
beginners a little professional training, but both are
probably temporary and are not to be reckoned as per-
manent factors in elementary teacher training.

Private schools play even a larger role in the training
of colored teachers than in the training of white teachers.
Thirteen of the thirty colored colleges and academies
of the state maintain normal departments. Much of
the work of these private schools is weak, but they are
doing the best they can with their limited resources, and
the state would be in a sorry plight without them. For,
of the 2,357 colored teachers reporting to us, over half
| i) received in private schools such training as they have
| | enjoyed.

  

i On its part, the state supports three colored training
H schools—one at Elizabeth City, one at Fayetteville,
Hi and one at Winston-Salem. These schools are all small,
and, together, have in the field 295 former students, 135

of whom are graduates. They turn out annually about

35 graduates, which is approximately one-tenth of the
new colored teachers now required.! There are also in
| i the state 18 publicly supported county training schools
1The state also maintains the Cherokee Normal School for Indians at Pembroke.

While this school gives Indian teachers about all the school training they ever

receive, the school itself is merely a graded school, for rarely do pupils advance
beyond the seventh grade.

 

 

7
Tue TEACHERS .

: i ‘oh
for colored teachers. These schools aim to ate oe
sclibiot opportunities for colored boys and girls ie —
for rural school teachers. Although of very grea ge : “
a are of too recent origin to have become a facto

ini ed teachers. ;
errr at our teachers are, as a body, ill vias
? -_
inexperienced, and unstable. The reasons for pergnten
satisfactory condition are low salaries, a poor —
s :
inadequate teacher training in
gage and new certification onine’s ae
] ; pat in the right direction, but before con: ae
vill materially improve, salaries for those having ape
be aration will need to be still further increased,
ie teacher training institutions culate sith pet 7
i t later, and ne
in ways to be pointed ou later,
we Pao masslaliald for the training of rural elementary
a ’

teachers.

 

 

 
 

 

  

 

V. INSTRUCTION

OOD teaching gives children the kind of knowledge

and the kind of power that are constantly aka

: in daily life. It trains them to read, to spell, to
gure, to observe, and to think. Unfortunatel

teaching is not of this quality. Most teaching inate :

heavily on memory or rote work, and so tends to stile

rather than to develop the child’s intelligence. ae

deer nage in our smaller schools, with rare excep-
: 3, each Ing consists in assigning lessons in textbooks

elping children to pronounce difficult words and sol ;
difficult problems, and hearing them repeat in a me ha s
Aes way what they can remember of the printed ae
2 notin FA data that arouse curiosity or Kast

i illuminate the

experience, or that point out the ans ie om sy eae

schools,
most of what they memorize

InsTRUCTION 59

that a few years hence they will have forgotten
d and will quite properly

be classed as illiterates.
These somewhat sweeping and unfavorable opinions

are the result of wide observation in the classrooms of
North Carolina and other states. Fortunately, however,
we need not ask the public simply to take our word as to
the quality of the teaching in our schools. Written and
other tests have been devised, by means of which the
efficiency of teaching can be measured, and the efficiency
of teaching in different places and under different condi-
tions can be compared. In February and March, 1920,
more than 10,000 children in different counties and cities
of North Carolina were thus tested or measured. It is
believed that the results from these tests furnish a fair
sample of the kind of education now given by the public

schools of the state.
Four counties were originally selected in which to give

the tests—McDowell, Rowan, Wake, and Pitt. The

school officials consulted agreed that each of these counties
e-

 

 

 

 

because of its usefulness in life. The teaching in thes
e

smaller schools is thu i
am s on the whole deadening jn its

mi our larger schools—rural and city—there is here
. there some excellent teaching, but, even in these
. pa the majority of the teachers do little more

essons and hear children reci
these teachers do not | eee Ae
ack the capacity to do b
but being neither stim faa
ulated hor guided b i
¥ y trained super-
visors they have fallen into routine and formal eed
of instruction. ae
With the teaching i
g in our schools on the whole
. . . . . of
ee it is inevitable that the results achieved shoaslit
é unsatisfactory. In fact, many children are now

learning so little i i i
7 in school, particularly in the small rural

was somewhat better than the average county of its r

spective sectio
Tidewater—and that t
counties would be somewhat better t

 

n—Mountain, Piedmont, Central, and
he results of the tests in these
han the average for

the state. To the four counties originally chosen Halifax
was added later, as were also the cities of Asheville,

Greensboro, and Wilmington.

In order that our data might be complete so far as they *
went, effort was made to test the children in every ele-
mentary school and every high school in the above named

originally selected counties. Few even of the one room
schools were omitted.! In the elementary schools the

1In the giving of the tests, we enjoyed the co-operation of the state department of education,
of the faculties of the University of North Carolina, North Carolina College for Women,
and East Carolina Teachers Training School, and of county and city superintendents, super-

visors, and others.

 
 

 

 

 

 

   

 

60 Pousric Epucation in Nortu Carorma

 

tests were given’ chiefly in the fifth and seventh grades.
The fifth grade was selected because large numbers of
children drop out of school before or by the time they have
completed this grade, and the achievements of fifth grade
children, therefore, are an index to the preparation for
life of children thus dropping out of school. On the other
hand, the seventh grade represents the final year in the
grades, and the achievements of seventh grade children
accordingly represent the maximum product of the North
Carolina elementary schools. In addition to the tests
given in the fifth and seventh grades, a special reading
test was given to primary children in a few city and county
schools, and high school pupils were tested in reading,
algebra, and Latin.

   
   
 
  
 

READING

Reading is the most important skill that the elementary
schools seek to impart. . Therefore, in testing the achieve-

ments of the schools, primary attention was given to
reading.

 

READING IN THE Primary GRADES

To teach children to read is not only the main task of
the first and second grades of the elementary school, but
it makes large demands upon both teacher and pupils
in grades 3 and 4, A public school system which achieves
a creditable record in this crucial phase of its work is
likely to do well in other respects also. To fail at this
critical point means inefficiency in all more advanced
instruction.

As a measure of how well our schools are teaching
children to read, a simple reading test! was given in
Raleigh to. approximately 1,000 school children and to
about 800 rural school children in one, two, three, and
four teacher schools. First, second, and_ third grade

 

  

OLD TYPE LARGE RURAL SCHOOLS

1The Achievement Test in Reading, SigmaI. By Haggerty and Noonan. The World Book
Company, Yonkers, New York).

 

 
 

 

 

  

Instruction

children were tested. The results of these tests at Raleigh
show good work in the third grade. The second grade,
however, falls considerably short of the achievements of
good schools in other states, and in the first grade the
results are decidedly below what they should be.

The poorest work was found in one teacher rural schools,
where third grade children did little more than one-half
as well as good second grade children should do, and
where fourth grade children read little better than good
second grade children. In the two and three teacher
schools the results were slightly better. But satisfactory
results are approached only in the four teacher schools,
where third grade children approximate the normal
achievement of children of this grade. Rural children,
especially in one, two, and three teacher schools, are thus
far below where they should be in reading ability; the
handicap of their poor instruction will be lifelong, and
it will be severe.

READING IN THE FirrH AND Srventa GRADES

The ability to read and understand simple prose of
the type found in school readers and in the textbooks
on informational studies, such as history and geography,

becomes increasingly important in the intermediate and

grammar grades. Accordingly, a reading test’ was given
to more than 5,000 children in grades 5 and 7. The
following is an illustrative paragraph from the test,
representing seventh grade difficulties, and the questions
the pupils were expected to answer after having read
the paragraph: _

Hay-fever is a very painful though not a dangerous dis-
ease. It is like a very severe cold in the head, except
that it lasts much longer. The nose runs; the eyes are
sore; the person sneezes; he feels unable to think or work.

1Thorndike Reading Scale, Alpha II.

 

 

 

 

 

 
 

<element igen es

; InstTRUCTION
62 Pustiic Epucarion in Nortu Carona

Sometimes he has great difficulty in. breathing. Hay
fever is not caused by hay, but by the pollen from certain 3. (Fe
weeds and flowers. Only a small number of people get 3
this disease, perhaps one person in fifty. Most of those
who get it can avoid it by going to live in certain places
during the summer and fall. Almost everyone can find

 

 

 

“So 2a7o9: 45

some place where he does not suffer from hay-fever. Se of, 1d eine aaa Pera fon
What is the cause of hay-fever? ; aA wows mA
How large a percentage of people get hay-fever? Ly eeon 8A

During what seasons of the year would a person have er
the disease described in the paragraph?

 

 

   

 

 

In order to meet this test, a child must be able to read
and to understand what he has read—which, by the way,
is just what he must be able to do when he studies his

lessons in history, geography, or science. The results
from the test show that the best work in reading is done

in the larger cities—Asheville, Raleigh, Salisbury, and :
Wilmington—and the next best in the middle sized cities.
But this so-called ‘‘best’’ work is itself poor, for the scores 4
in both groups of cities and in practically every individual
city fall considerably below the normal score for seventh
grade pupils in an eight grade system.! In fact, our
seventh grade city school children read no better than
good sixth grade children elsewhere, and appear to be
two years behind the standard reading achievements
of children who complete an eight year program. The
record for grade 5 in city schools is somewhat better,

being only slightly lower than the standard score for this
ry grade.

 

 

 

 

 

 

 

 

 

 

 

     

 

But the worst conditions are found in the rural schools.
In no case did any group of seventh grade rural children |
in any of the four selected counties equal the standard 3

Kind of School

for grade 6. The seventh grade scores for all the counties
approximate the standard score for grade 5, and the

fifth grade scores are about equal to what third grades

¥

3 Teacher-_.----------
4 Teacher....-.-----------

General Standard—Grade 5-----------------
General Standard—Grade 6-------------

Large City (Second Half) ------------------

Small City (Second Half) -----

‘In interpreting grade scores, it should be kept in mind that North Carolina hasaseven grade
system.

Rural

 
 

 

 

64
Pusuic Epvucarion in Nortu CaRroLina

ore In general, therefore, the reading capacity
and seventh grade rural pupils i
below the achievem ani
ent of good fifth and seve

. - . nth
aaa general, and one year or more piety

vement of the children of corr m

espondin, i

the better city schools of North Carolina Agen

OB rarer appears even more critical when
prc ences ural children are considered. The me-
Se ae siya dies age, of the seventh grade children in
iy Pengent a of North Carolina is about thirteen and
itis elena oe
older. To put it differentl a faxccnsy ae a.
dren examined in one et Tied doe Ce

ae age of about fifteen years and three months
_ i approximately two years more than the micdiags
ba = age of the 630 seventh grade children of the
aor x epee ee these same rural children are
ehind in reading. Combini
it would appear that th Poor line
ese 217 seventh d i
in the one room rural a ara
schools are at least thr
. . . . “
"cake Line Mew achievements of the Shinde
y schools. Where such condition i
Where : S prevail, th
ees gs effective instruction in informational na
rt gin | 2s history and geography. The validity of
' € appears in the results for th inati
. . : .
in United States history to be described bie

In |

ku gie nei that 50 per cent of the rural school
ate never go beyond the si

the overwhelming signi t aie

g significance of th i i ick

: ' e reading situatio

pecate clear. Men may differ about the iretecss

— - ne haa people the subjects of algebra and Latin

can be no difference of opinion i i.

: among intelli-

a ies as to the importance of teaching the "children
r democracy to read the English language

of reading in the elementary grad
paid anywhere

InstRUCTION 65

Hicu ScHoot READING a

ceptance of the importance
es, little attention is

to continuing in the high school in-.

ldren in the mastery of the printed page.

Yet there can be little doubt that such mastery, or its
school instruction.

absence, influences all phases of high
To test the achievement of our high schools at this
critical point, a silent reading test was given near the

close of the school year to more than 1,300 eighth grade
pupils (first year high school). The same test was also
given to more than 2,000 students in the upper high

school grades and in the first year of a few of the standard

colleges of the state."
When the results for our first year high school students

are figured on the basis of the entire test, it is evident
that they finish accurately less than 50 per cent of the
test. It might appear that this low per cent of accuracy
was due to the great length of the test, as students gen-
erally were unable to complete the entire test in the forty-
five minutes alloted. However, when the results for
accuracy are figured wholly on the basis of the questions
which the pupils attempted, the per cent of accuracy for
these first year high school pupils is but little higher.
When compared with the results from corresponding
grades in schools outside the state, the North Carolina
scores are always lower. The larger North Carolina
cities scored 48.3 per cent of correct responses; St. Paul
scored 55.4, Kansas City, Missouri, 59.4, and Boulder,

Colorado, 64.
The percentage scores

and fourth high school years i

While there is general ac

struction of chi

1These tests, as arranged for the
comparable data, we_had them given in certain o'

Boulder, Colorado, and St. Paul, Minnesota.

for students in the second, third,
nerease, partly, no doubt,

North Carolina survey, were new, and in order to procure
ther cities, notably Kansas City, Missouri,

 
—- et : 2

InsTRUCTION 67

   

and partly ‘because high school education improves read-

ing capacity. What is true of the scores for the larger
cities in these upper high school grades is correspond- 1
ingly true for upper grades in the rural high schools. i
Even so, the 119 high school seniors in the rural high
schools of McDowell, Pitt, Rowan, and Wake counties
score less than do the freshmen in any high school reported

from outside the state. What high school graduation

from such schools means in terms of the mastery of

| knowledge it is difficult to understand.

 

SPELLING

olina children spell,

“To find out how well North Car
to the fifth and

| .
two lists of 20 words each were given
| seventh grades, respectively, in the schools examined.
the fifth grade were as follows: 1 forenoon,
neighbor, salary, visitor, machine, success, honor, promise,

busy, different, attention, education, director, together,
soldier, tobacco, treason. Those

immediate, convenient,
ee, archi-

   

 
 

 

The words for

 

Virginia
6.7
6.2
6.9
6.9

 

service, general, lawyer,
for the seventh grade were as
receipt, preliminary, disappoint, annual, committ
tecture, artificial, beneficial, colonel, contagious, development,

5
5
5
5

  

“Thorndike” Reading
Carolina i
.70
73
64
78
6.28
6.40

North

 

   

Sect ees Clee i
Be3d agate at eee
tal 8.4 ear Se ee ae oe +78 " * f r
gseF isn cai 4 familiar, financier, intelligent, opportunity, peculiar, per-
7 2e2r' 22 severe, treachery.
' Fifth grade children in the larger and medium sized

cities fell but little short of the grade standard (66 per

    
 

 

 

ad |
Eiga Be Ee bs no H
3 Ba ABR 88 it cent). None of the rural schools, however, even approx-
z ra imates satisfactory results. The fifth grade pupils in
NMR intake i
amr er 3 = one teacher schools spell, on the average, only 8 of the 20 i
3 eas aa 58 words correctly, whereas the standard calls for 13. The i
3 spk ‘ 33 33 two and three teacher schools did somewhat better, but |
ooo o°o |
3 S333 ge 3a even the four teacher schools fell 15 per cent below the ie
§ |_BEee Be | 34 standard. if
¢ ay = 5 5 5 - r+
a qe} 33 Pe
Fy 4 oo ‘ 1 These words were selected from Column R of the Buckingham Extension of the Ayres Spelling 1
v7 Scale :
2These words were selected from Column X of the Buckingham Extension of the Ayres Spell-

    
  

ne . =
Se ee ee ee ——
arr itaeiiial
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

68 Pustic E
uC Uearemen, Cintra InsTRUCTION 69
3s f&
Zn8| 2% aK
ae “3| 8 ca et The results for the seventh grades_ indicate that the
3 3. words chosen for the test were too difficult. Neverthe-
= <5 dae | be ) less, on the basis of the results derived from tests given
= ++ . elsewhere throughout the country, it was reasonable to
ae 228 | expect that our city children would spell at least half of
5-1 the 20 words correctly. No North Carolina school group
* mise} oot es equaled this expectation. In general, the city schools
a DE Sa: Piles sip bo spell correctly less than 8 words and the rural schools
S| 3 P
&| © ie wen = | less than 6 in 20. While the city schools achieve the
| z|_ = g| #45 z best résults even their achievement falls so far short as
= a ote to prove the poor quality of the spelling instruction.
z ze raked
LS)
5 asst nes = ARITHMETIC
= Ej = S “ x Hardly less important than the ability to read is the
ee 2 we “1: P . .
Si -z| <de¢| 222 2 ability to handle the fundamental operations of arith-
g| 3 ee Rete a ‘metic. To measure the efficiency with which our schools
q aq 228 teach arithmetic, fifth and seventh grade children were
~ Sat RE. ot OT CO ee tested in addition and in multiplication. The test con-
S set den pen sisted of a series of problems in addition and multipli-
iS} 3 3| 398 fee ; cation, beginning with very simple problems and advancing
=) aah SE ee a nning
eI ee eee cas i | to more difficult ones. Nineteen problems were given
| z| “2°3| ss3 | 2 ze | £33 in addition, and 20 in multiplication. The measure of
= By Se 33g a pupil’s ability is the number of problems solved cor-
= ERS SRS aes
= Ze 2 35
S |] 3 go
a PTt Pry | tee
Pi : 233 |
fale 388.
3 Pid me i
a Pris ee
“4 ye Pere cs S88 {
3 facet 1 hPa ee
= lee gi) | 3TT |
PBL ioe) edt | )
égds 6°72 | 58a
= a32 | Fs9 —_—- .
Zz 3 3 Fj ' 1Woody Scales, Series B, (Bureau of Publications, Teachers College Columbia University
New York). bd

 

 

 

EAR a prt
 

 

 

 

     
  

 

 

 

 

 

 

  

 

 

UCTION
70 Pusric Epucarion 1x Norru Oarorina ones
rectly in ten minytes. The following are representative
of those in addition:
3
2 23 $8.00 $ 49 *
3 25 5.75 .28
16 2.33 63 4 Bie Sure Pn ae
earn eee | 95 E |
94 1.69 |
6.32 22 2l s
33 S| 3g
36 Fs |
1.01 :
56 | eg en ee ae
88 8 a
75 6 hg ae a
Bl 8 | S| Bt?
56 2 | Be aaee Ss
ae i Jen
me Fla 3 5 ws Xe
18 ml Ba a Sees
¢ 56 i=) ae 2 ~ aot "=
. a | a z =
< 1p 19 1 H 4.8
2 abchara
The following are representative of those in multiplication 3 et ee ee
Ps 5) B3|8| e852 38
3x7= 50 8754 16 216x314—= 2 Hf ae
3 8 254 E|se|&| ss22 2
| ee a NT re
& See ee ae
The normal addition score in Novemberjfor, seventh 7] Phas tt
grade children in northern and western cities having S| bets : ea :
eight year systems is 18 problems. The seventh grade 5 | ~ eee i {
children in larger and smaller cities of North Carolina 3 eon 4
tested in February and March made a score of 15 prob- ‘% es 4
lems, which means that they are about a year and a half g cu6 5 a
below where such children should be; indeed, in no instance F | 33 eb
did the seventh grade children of any city reach the stand- maaw OO
ard for sixth grade children of good schools. As in reading, : = EI 3
the best work of rural children was in the four teacher os

 
   
    
  
 
 
 
  
 

73 Pusuic Epucarion iy Norru CaroLina

 

schools, where seventh grade children made a score of 14
problems, only one problem below the score of the larger
and smaller cities. The poorest work was in the one
teacher schools, where the score was 12 problems, which
shows that seventh grade children in these schools have
little more than fourth grade ability in addition, when
measured by the achievement of children in good schools,

Similarly, in multiplication the seventh grade achieve-
ment of children in the larger and smaller city schools is
slightly less than the normal achievement of the sixth
grade in good schools. In the one, two, and three teach-
er schools, the seventh grade made -scores only a little
better than the standard score for grade 5.

When, in connection with these scores in addition and

 

 

school children are one, two, sometimes three years older
than they ought to be, the full meaning of the poor re-
sults becomes apparent. Here and there a child of un-
usual ability may achieve for himself what the schools
fail to give him, but the great mass of children who

leave these schools will go through life weighed down by
their poor schooling.

 

 

History

Outstanding dates, like 1492, 1776, and 1860, the names
of men like Columbus, Washington, Jefferson, Lee, Grant,
and Lincoln, and inventions like the cotton gin, telegraph,
and locomotive represent. to educated persons the course
of events leading up to our present American life. Few
will deny that the merits of an educational system must
in part be judged by the amount of such historical knowl-
edge it imparts. Accordingly, about 2,000 seventh grade
pupils were tested in United States history. Two types
of questions were used—informational questions, and

questions that required the child to employ his powers
of thought.

 

 
   
   
 

multiplication, one considers that in every grade the rural -

  
   
   
     
     
     
    
   
   
   
   
    
       
      

   

 

BLADENBORO—BLADEN CountTY

NEW TYPE LARGE RURAL SCHOOLS

 

 

 
 

 

 

—— a -  -——

  

73

InsTRUCcTION

 

Although the state course of study calls for the sys-
tematic teaching of American history as early as the sixth
grade, it does not appear that our children have any gen-
eral mastery of the subject comparable with their grades.
For seventh grade children in Asheville, Raleigh, Salis-
bury, and Wilmington fall very much below children in
good schools elsewhere even on the informational
questions.1 The highest record on such questions was
made by Raleigh, yet even there the score made by the
seventh grade children is below the standard for the sixth
grade.

The results in rural schools were still more unsatis-
factory, as seventh grade rural children did only about
half as well as sixth grade children are expected to do.
Think of sixteen year old boys who believe ‘that Thomas
Jefferson was the president of the Southern Confederacy,
that Andrew Jackson invented the telegraph, and that
the chief result of the Revolutionary War was the freeing
of slaves!

The various types of schools did even less well on the
thought questions. In no single school, rural or city,
does the achievement of the children on these thought
questions exceed the. standard for the sixth grade, and
the smaller the school the less satisfactory the results.

ALGEBRA

As stated before, tests were also given in high schools.
The results achieved in high school reading were re-
ported in connection with the reading in the elementary
schools. It remains to describe the results in algebra
and Latin. Most of our high school students begin the
study of algebra in their first year, and second year pupils
are supposed to devote one-fourth of their entire school

time to this subject. To measure the result of this very

1Questions were selected from the Van Wagenen Series of Standard Scales in American His-

 

 

 

 

 

 

 

 
 

 

 

 

 

 

 

74. Pustic Epvcation in Norrn CaRroLina

considerable effort, about 1,700 students were tested, in-

cluding all the pupils who were studying algebra at the
time the tests were given.}

Owing to the different lengths of time that different
groups had studied algebra, it was found convenient to
tabulate and report them in six separate divisions, ac-
cording to the length of time the pupils have pursued the
subject. Judged by accepted standards, the algebra
results achieved in our high schools are far below what
they should be. For example, children in the rural high
schools who have studied algebra more than a year
achieved results in addition which should be achieved in
from three to five months. Even in the larger city high
schools students who have studied algebra for more than

a year only slightly exceed the standard for pupils who
have pursued the subject less than six months.

City high school pupils do better than rural high school
pupils in the solution of equations and formulas. How-
ever, in neither case do the achievements in the solution
of equations and formulas by students who have studied
algebra from eleven to fourteen months exceed the scores
of pupils in good schools who have studied the subject
only from six to eight months. ;

Whateyer differences of opinion may exist with regard
to the desirability of the extensive teaching of algebra
in high schools, there will probably be general agreement
that if algebra is to be studied at all, its fundamentals
should be thoroughly taught. By some it is argued that
skill in the fundamental operations may be sacrificed
until pupils have acquired a real interest in what algebraic
processes mean; but even the advocates of postponement
would hardly argue that pupils should go on for six, nine,

eleven, and even twenty months in the subject without
a real mastery of the fundamental skills involved.

 

'Hotz’s Algebra Tests, published by the Bureau of Publications, Teachers College, Columbia
University, New York, were employed.

 

"7%

 

a
. a
bunds | Baia |
Te
. » “a eo
tvaswt|: 3 3 |_|
b| gee | Sos 6 |
one 8 | o RQ
s|s83288| 2 5s |
= Ee ee rl Ee ee ee
q basse | Ree SF |
a | ae ee |
' be}
i) ii [s 3-3 |
4 t
st : ; ; ;
a| bee |
; |

   

SUMMARY OF ALGEBRA SCORES BY HIGH SCHO

InsTRUCTION

ddi-
tion
and
Sub-
trac-
tion

 

5.7

 

 

 

dbl aot Fat
3 ' rae 4 :
2 Ai gi dils
B 3 ag
a} 3 ae iad a
2 24824035 3
id abhPabPass | s
Fd t t Are
gery A g

 
  

 

 

 

 

 

76
Pusiic Epucarion iy Norrn Oarorma

are art cae “a re ny to add and substract
gebraic methods, and i
caegiaee! solve simple equations and readily is
Se i —— can be no mastery of the more
aps - raic principles. North Carolina high
” gee o not even learn the elements of the subject
i bey are mastered by the better taught high
pupils in other states. : :

LATIN

. ae i es students were also examined in Latin. A
oe yee sere: in this subject was given to about
is aed Z who had studied it. more than two years.
ner eee Kies graded by disinterested teachers of the
ee, ite In pronouncing the results “lamentable.’’
i a of those examined made a mark of 50
gee a ter. If we take 60 per cent as the passing
Rr: a esd cent passed the examination. It is
eae pee: eaching is extremely inefficient, partly
she ene rn ape many teachers are untrained, partly,
nubian e high schools are forced by colleges ana
etree ) nie more work than students or teach-
ioe yo sit ully perform. There must be better
oe iO i but the colleges must co-operate with
mca Toth gene arte — requirements that
nike efficiently met. <A less -
nt les Pe —_ adequately met, will ae
pete ne ards and ideals of both high schools

LarGer Scnuoot Units

The results of the tests, particularly in the elementary

‘ schools, show clearly the beneficial effects of large schools

sr bo schools not only achieved higher scores for the
me « dagen in the subjects tested, but they move their
along. through the grades more regularly, so

ee
. canine

4

at

INSTRUCTION

   

children in our city systems are

from two to three years beyond children of like age in
our smaller rural schools. Such facts point to only one
conclusion—viz., that the cities and towns have better

schools.
The truth of this

that thirteen year old

conclusion is evident in the results

achieved in the rural schools of various sizes. The aver-
age age of seventh grade pupils in one teacher schools is
about fifteen years and three months, which is approxi-

mately one year greater than the average age of seventh
in four teacher schools. The scores of

grade pupils
in reading are practically the same,

these two groups 1
which means, when. age is taken into consideration, that

the one teacher schools have failed by as.much as one
year in doing as well by their pupils as the four teacher
schools. The same story is repeated in addition, multi-
plication, spelling, and United States history.

The difference between the achievements of rural school
and city school children, and between the large and small
rural school children is, of course, not only a result of
better gradation and better instruction, but is also due
to the greater length of the school year and more regular

attendance. As previously pointed out, city schools

have a school year ranging from eight and a half to nine
1 schools have a school

months; many of the larger rura
year of similar length, but in one room schools, until the
y four and a half

present year, the term has been onl
months—it is now six months. Obviously, it is impossible

for teachers in the smaller rural schools to do, with less
regular attendance, as much for their children in six
months as the teachers in the larger rural and city schools

do for their children in eight to nine months.

The superior results achieved in the larger elementary
schools, both rural and city, are an unanswerable argument
for school consolidation. The full value of consolidation

begins to be realized only in schools employing four or

 

 
   

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

EN ara ens eet om
oe be resorted to.
be efficient; one or two teache
bith sat the facilities required for hig
' small a number of teachers carry
ten ee Oy ’ struction contained within even an unpre
4 school curriculum. Fortunately, high school consoli-
s in some respects a comparatively simple matter ;
can be transported longer dis-
d at centrally located county - |

rs can not be provided with
h school work, nor can so
the varied load of in-
tentious high

78 Pusuic Epucation mv Nortu Caroiina I 79
NSTRUCTION
Ss
g Et ae more teachers, though even the two and three teacher
s schools possess certain advantages over the one room i
3 | Ss ¥ 3/8 school. In a state like ours there will always be a large
oF Ae areas ae number of one room rural schools, and these should be
3|/ # & &/8 made as efficient as possible. But every effort should
———_—______| be exerted to consolidate these small schools into large
‘ oi gce tate - units, and the unit aimed at should not be less than four
bak esate ate we ares teachers.
a| f| sg eg ale What is true of elementary schools is equally true of
S g Oe A CRORES er high schools. The results of all our tests point unmistak- ;
e ras is Peep eee ae ably to the advantage of the large high school, which
E reat Oe ae ite Meee makes possible the employment of better teachers, the
a tease better classification of children, and the development of
s lacs i ol a more effective school life. Just as we should, as far as
B 3 possible, eliminate the. small rural elementary school
5. 2 Semis Ae, S| through consolidation, so we should eliminate the small
= a es Ree were rural high school by similar process. Indeed, it might
& er fected etet So . well be argued that high school consolidation is even
a ote . more necessary than elementary school consolidation;
E EE 2 228 | P for a small elementary school, though undesirable
i Es | and relatively inefficient, can and must occasionally
a But a small high school simply can not
:
=
z

: ‘ dation 1
the pupils, being older,
tances, and can even boar

institutions.
To summarize, our study of the quality of instruc-

‘tion now offered in the public schools of North Carolina
confirms the impression made by the study of the separate
items that go to constitute a public school system. We
have admitted ungrudgingly the great progress made in

Period of Preparation

 

 

(28-36 mos. ine.).._______
(37-52 mos. inc.)___._____

(19-27 mos. ine.)__._____
Over 4 years

3-4 years

2-3 years

 

 

 

 

 

 

 

 

 
 

80 Pustic Epvcartion 1x Nort CaRroLina
a brief period. None the less, as things now stand, despite

all that has been accomplished, the state possesses the
outline or skeleton of a school system rather than a de-
veloped school system. Buildings are still mainly poor,
teachers are still mainly untrained, financial support is
still inadequate, supervision is still ineffective. It follows,
as the present chapter shows, that instruction is, in general,
of inferior quality. In elementary schools, as in high
schools, pupils do not learn thoroughly the fundamental
things which the schools are designed to teach ; the results,
compared with the results obtained elsewhere in the
United States—whether cities, towns, or rural districts—
are uniformly to the disadvantage of North Carolina.

PART II
HINDRANCES TO DEVELOPMENT

CHAPTERS VI-VII

 

 

 

 

[81]

 

 
 

 

 

 

 

 

 

 

VI. ADMINISTRATIVE HANDICAPS

\ ' ] E have been engaged thus far in describing the

schools as they are; it is next in order to con-

sider the steps to be taken to improve them. If,
however, we turn aside and consider a few of the major
hindrances that have retarded school progress, we shall
be better able to appreciate the reasons for some of the
conditions that now exist and we shall also be better
able to appreciate the need of certain changes in the
constitution and laws of the state affecting the admin-
istration and organization of the schools. -Among the
hindrances to be considered in this chapter are the han-
dicaps on effective administration.

The administrative handicaps on our public school
system spring, in the first instance, from the educational
provisions of the state constitution. The schools operate
under the constitution of 1876, as amended. This places
on the general assembly the responsibility of providing
a uniform and free system of public schools. If the con-
stitution of 1876 had also safeguarded the perpetuity
and inviolability of the Literary Fund, and then stopped,
it would have conformed to the best present-day practice.
But like most constitutions of that time, it did not stop
with these provisions.) It provided, in addition, for_an
ex officio state board of education, composed of the govern-

-or, lieutenant-governor, secretary of state, treasurer,

auditor, superintendent of public instruction, and attorney

general, with the gove resident, and the state
of the board, and for the

superintendent as secretary,

election of the state superintendent of public instruction
at the same time and in the same manner as other state
officers. Like other officers similarly elected, the state
superintendent is an executive of the state and a member

of the council of state.
[83]

 

 
84 Pustic Epucation 1 N ORTH CAROLINA

It is not surprising that the convention of 1876 thought
an ex officio board would answer as the centralizing and
directive head of the public schools, for it was difficult,

* to say the least, in 1876 to foretell the demands of the
schools in 1921. Nor is it surprising that the powers
of the board were not clearly defined, for the proper
powers of such a board were then little understood.
Whatever the full scope of the powers conferred, they
extend in two separate, though related, directions: first,
over the operation and conduct of the schools themselves,
and, second, over the management and administration
of the state educational fund. or the board is vested
with ‘‘full power to legislate and make all needful rules
and Fegulationy iy Poston te Tear pap
edueaional fund of the state.” At the same Gime: the
board is limited in the exercise of its ‘‘full power,’’ because
it is made responsible and subordinate to the general
assembly—‘‘all acts, rules and regulations of said board
may be altered, amended, or repealed by the general
assembly.’’

Accordingly, the general assembly has never hesitated
to add to or substract from the powers actually exercised
by the state board of education. This is illustrated -in
the management of the Literary Fund. From the very
beginning the general assembly prescribed the type of
securities in which the board should invest the principal,
determined also the manner of apportioning the income
therefrom among the counties, and in 1903 completely
changed the use of this fund, providing that the income
therefrom should no longer be distributed among the
counties for current school expenses, but that both prin-
cipal and interest should thereafter constitute a permanent

& revolving fund to be loaned to county boards of education
for the erection of school buildings.

The general assembly has pursued a similar policy with
the educational powers of the board. Legislative pro-

 

 

 

 

 

Hanes Scooot—ForsytH County

 

 

  

 

Spray—RockiIncHAM CouNnTY

NEW TYPE LARGE RURAL SCHOOLS

 

ow Paes:
ra eerie that
 

 

 

    

ADMINISTRATIVE HanpIcars

visions for the selection of textbooks are typical. At one
time the general assembly authorized the state board of
education to prescribe these. Later it limited the power
of the board to that of recommendation, afterward restored
-the power of adoption and later divided this with a sub- —
commission appointed by the governor and state superin-
tendent, and, finally, in 1919, provided an independent
body, to be appointed by the state superintendent, to
choose textbooks for high schools.

In the exercise of its authority, the general assembly
has apparently had due regard for what would seem to
be the board’s constitutional powers over the state educa-
tional fund, but it has not shown similar consideration
for what would seem to be the board’s constitutional
rights in the management of educational affairs. New
administrative officers and boards are created, now in-
dependent of, now subordinate to, the state board. For
example, the state board of education is authorized to
prescribe rules and regulations for conducting schools
to teach adult illiterates and to spend annually not more
than $5,000 in the organization and administration of
this work under the direction of the state superintendent.
In contrast, the state board of vocational education is
an independent creation, exercising large powers: it
prescribes courses of study, certificates teachers, and
expends public money. The college commission regulat-
ing degrees is likewise an independent body, as is also ©
the high school textbook commission, and the commission
on instruction in agriculture, manual training, and home
economics. The board of trustees of the Appalachian

_ Training School is not only an independent, but a self-

perpetuating body. On the other hand, the state board
of education appoints the trustees of the Cherokee Indian
Normal School, the East Carolina Teachers Training
School, and, with the advice and consent of the senate,
those of the State College for Women and the Cullowhee

 

fe Ris a ee ek ee ae iy Saat oy = ing i
er ee aid a tae ek aa 0g, =~ ab 3S «> an a

 
87

. ApminisTRATIVE HanpIcaPs
86 Pusiic Epucation mm Norra Carona

i r
political upheavals to influence 0

i icies of the state.’
alter the educational policies aman

] = J I
hes an

ion free from such defects
te board of education
pe Rong In the meanwhile, the fullest use should
an rs.

of the present board. ;
" eae the ever-changing policies of the cee
h a lini in such a confusion of unrelated activi
avi

: ad : \
d boards as to render effective administration extremely
an

Normal and Industrial School. The state board of ex-
aminers and institute conductors is & unique complex.
The state superintendent is an ex officio member and
president, and the superintendent of N egro normal schools
and of the Cherokee Indian Normal School and super-
visor of teacher training is ex officio secretary ; the governor
appoints six regular members. The state board fixes the
salaries of the several regular members on the recom- q

the way for passing

 

 

Carolina Teachers Assembly, and the state board may a half dozen

 

 

 

dismiss them for cause, with right of appeal to the courts.

This variable policy on the part of the general assembly
has had a twofold effect. On the one hand, it has pre-
vented the development in the state bdard of education
of a strong sense of stewardship and a keen sense of re-
sponsibility for the schools; the board has performed such
duties as the law imposed, but our schools have never
felt the unifying and directive influence of a determined,
progressive board at their head.

The fact that the board is ex officio has probably pre-
vented the general assembly from giving it adequate

mendation of the executive committee of the North :
4

been stated,
i _ There are now, as has :
Gained and independent bodies, each heading som

pat of tS, aan
cae a seal unity ve 09 Bev eg

iy 1 =e ch ate ranean authority. poe
pj "as state board of es eso” eater
eae Miah efhebeagg wes Sem board only apportions

tudy, and, along with a commission appointed by him-
8 ? ?

1 cts h a.
S' ’

i i i while
ion has charge of vocational instruction, |
abe ott 1 courses for agri-

oe . m
another commission prescribes gene citer
culture, manual training, and home

?

te board of examiners certificates the eae : rt |
poe the high schools are inspected by an official ap

intendent.
inted by the state superin .
ten a single body legally pase an Serer
tire field of ac F )
nd rarely for any one en
e Sr tis can not be devised or pursued. The

als have been repeatedly returned
g this danger; the danger never-

. . $
; tate funds to them. ‘The state pa leans si Le 4
| vies and regulations as to organization and ¢ |

  
 
 
 
  
  
  
  

 

and appropriate powers. Its members are without ex-
ception state officers, elected on a party platform, and
committed to an administration program. Moreover,
with the specific duties of their respective offices to per-
form, it is difficult for them to give the needed time and
thought to the solution of the intricate problems involved
in the creation and general management of a compre-
hensive state school system.
The unstable character of an ex officio board counts
also against it. In order to secure stability and continuity
of policy, the membership of a board of education should
be liable only to gradual change. The danger is always
present that the membership of the present board, in-
cluding the state superintendent, may change completely
and abruptly at the end of each four years, thus opening

flici:
1The fact that within recent years the same _
to office has prevented the state from apprec:

theless exists.

7

————
 

 

 

 

 

 

88 Pusric Enucarion 1x Norra Caronina

schools will continue to suffer under this handicap until
all the agencies sharing authority with the state board

are abolished, and the state board becomes, as would
seem to be the intent of the constituti
directive head of the system.

There is a further handicap to be considered—divided
administrative leadership. The constitutional provisions
for a state board of education and for a superintendent
of public instruction would seem to imply that the state
superintendent is to be the executive officer of the state
board and the responsible administrative head of the

public schools. The general assembly has, however,
not endowed the state superintendent with suc

and authority.
His election by popular vote may have caused the
general assembly to hesitate. Certainly, the increasing
complexity of public education, its increasing cost, the
growing amount of technical experience and knowledge
required for scientific administration have rendered pro-
gressively unsatisfactory the selection of a state superin-
tendent by popular election. The office is now and
always has been open to any respectable citizen, irrespec-
tive of educational qualifications. Moreover, to place
the state superintendent on the same platform as other
state officials, bind him to party pledges, and make him
a member of the council of state, identifies him with
active politics, and endangers the independent adminis-
tration of the schools. The best man obtainable is none
too good to fill so high an office. Appropriate safeguards
should be thrown around it, and the state superintendent
should be free to administer the schools in the interest
of all the children of all the people of the state, regardless
of party politics.
For two decades we have been spared the possible
vicious effects of electing the state superintendent, but
future experience may not be so fortunate. The present

on, the unifying,

h powers

 

89
ApmrnistRatIve Hanpicars

: 1 is predecessor were both ap-
ne aap mperoreis yon probably neither
Sond ee been a candidate. Experience has proved
a ples by a responsible board is far the surest
fe a aaele and retaining a competent state super-
pice eg In order to free the office from all political
= ee and to secure the best man available, there
pec Me ‘eliminated from the constitution all sections
eee to the election and duties of the state superin-
— i the meantime, legislation is required to
ee od ae ase professional qualifications of the |
8 : bent, and the salary of the office should be increased.
Ce LOREM has no other business or phon
4 can not afford to serve the state, however oe ‘t

rivilege and honor, if living conditions eyes vie
Pp d more than he receives. A salary of $4, 00, 4
Tae of $3,000, is inadequate; county and sic pict
intendents frequently receive more. His — : ye
properly be doubled, and certainly should meet pei
$6,000. For example, Maryland pays $8,000, an
ersey, $10,000.
‘ These limitations angen Sees _
= . *

pti i so pach ‘i ‘stated above, adminis-
ss aneos aaninniniliie is now scattered among —
le and boards. In certain instances the sta
ites dent acts as the executive officer of the state
askit pin in making loans from the state literary
rr poe 8 state school ei —

' illi es, and in school extensio: ‘
aa me ee ae or designates a
- a erat the supervision of colored alge _—
a ' the selection of elementary pine : ve bia
instances, even though the pono eh go ety

iated, activities are in ed, t .
peor gerapicete on plans, for which no one is appar

   
]
}
/
|
;
|
Hf
|

 

90 Pusuio Epvucation In Norra Oarorma

ently responsible. Executive authority in those parts of
the system not under the state board is similarly scattered.
In some instances the state superintendent is authorized
to act as an independent agent; for example, in prescrib-
ing rules and regulations as to the organization and courses
of study for high schools, for the conduct of rural libraries,
and for the management of the Cullowhee Normal and
Industrial School. In still others, he becomes the execu-
tive officer of independent boards; for example, the state
board of vocational education. ;

Working through these several minor boards, as well
as the state board of education, a forceful state superin-
tendent may give a certain consistency to the management £ ConsonrpaTep ScHoor—WakeE CounTY
of the schools. At best, however, he is compelled to
operate amid conditions that are highly unfavorable to
efficiency. Nor can the disadvantages be completely
overcome, unless these independent agencies and boards
are stripped of their legal administrative powers and
the state superintendent is made the executive officer
of the state board of education, the responsible adminis-
trative head of the system.

Thus to centralize executive authority will not only
insure a better administration of the schools, but will |
also simplify the administrative machinery. Indepen- i
dent boards and agencies will disappear and their func- .
tions will be taken over by divisions in the office of : |
the state department of education; the heads of divisions |
will be appointed by the state board of education and |
will be responsible to the board through the state super-
intendent, its executive officer. |

To conclude, before the way is open for the most effect- :
ive type of state school organization and administration
it will be necessary to eliminate from the constitution all
sections relating to the state board of education and to
the superintendent of public instruction, replacing them  : DORMITORIES—LARGE RURAL SCHOOLS
by a provision giving the legislature the power needed to

 

 

 

 

nm

  

 

 

 

  

Farm Lire Scooor—CravEen CounTyY

 

 
 

 

 

 

ADMINISTRATIVE Hanpicaps 91

create the necessary instruments. Meanwhile, many of
the present administrative handicaps are due quite as
much to statutory as to constitutional limitations.
Even as the constitution stands, the state board of educa-
tion can, through well considered legislation, be made
the real head of the public school system, the state su-
perintendent can be made its executive officer, with com-
plete administrative responsibility, and the office can be
properly safeguarded and the salary increased, thus
guaranteeing to the schools freedom from politics and
greater unity of policy and effectiveness of management.

 
 

 

 

 

 

 

Vil. LIMITATIONS AND CONFLICTING
DEVELOPMENTS

“HE CONSTITUTION of 1876, as amended,
recognized the county as the chief local unit of
school administration. The county commissioners

were made responsible for maintaining schools adequate
in number and conveniently located for at least six
months' in every school year. Their ‘‘general super-
vision and control’’ of the schools is, however, subject to
the discretion of the general assembly.

    

In the exercise of this discretionary power, and in the
effort to comply with the constitutional mandate as to
the minimum length of school term, political and economic
conditions have at times led to compromises; a lack of
supporting public sentiment has often delayed appropriate
legislation or prevented it from becoming effective. Now
one plan, now another has been followed. The result
is a number of serious statutory limitations on school
progress, and a number of cross-developments; for ex-
ample, the development side by side of two mutually
exclusive systems of local school administration, the
county system and the district system. ;

Tradition favored a county school system. In a fully
developed county system, a single central board controls
and supervises through its agents all the schools of a county,
except, those of large cities, and all property in the county
is taxed for the support of all the schools of the county,
to the end that all the children of the county may enjoy
similar educational opportunities. This type of organ-
ization has more and more come to be recommended by
those who have seriously studied the needs of rural states.

1Prior to 1918, four months.
[92]

 

Tometretaermel

on Ane ee

93
LimiraTIons AND CoNFLICTING DEVELOPMENTS

In adopting a county form of school organization we pone
therefore, wise and fortunate. But we have develope
neither the financial nor the educational possibilities,(o

such a system.
For example, at no time has the county assumed full

responsibility for providing all schools hte bet
buildings and equipment." The township or t e ani
has always shared in this responsibility. igi te) a
the money raised by state and county ess owt me
other school revenues, and apportioned to t sarod ss
or districts, was supposed to be sufficient to care abt oe
school expenses, such as teachers’ salaries, fuel, . He :
also sufficient ta provide suitable grounds, bul ye ;
and equipment. But this was rarely the beg
money so apportioned birt 34 er aaa t spine “
even to maintain the schools for t
_ Indeed, in 1901, 74 of the 97 counties
ne erga from the equalization fund to bring om
school terms up to the constitutional minimum. rt
1901, county boards have reserved from moneys “1 ne ;
before apportionment, a specific proportion as a ae
and repair fund, but in no instance could pak aan st :
more than a half of the cost of a new school building.
As the districts were not permitted to tax sce at
for school purposes prior to 1901,* the needed loca a
for school buildings were usually Taised by jee e
‘ subscription. When this method failed, the pany ake
was at times shortened, or school was abandoned a =
gether, and the local authorities used the county or
tionment to provide needed schoolhouses. te e
approximately 2,000 districts have voted a specia

 

 

poet P 1
1The county board of education in 1901 assumed responsibility for sites or schoo

¢ . . li 3.
ey, the special session of the general assembly in 1920 removed this limi

i . : . . 1
ag ee was, however, a longstanding law permitting townships to vote a nomina

local tax, but few townships acted favorably.

 

   
 

  

 

 

94

 

Pusuto Epvcation 1x Norru CaRoLIna

to supplement the county apportionment, but about
6,000 other districts refuse to sanction such a tax, and
remain dependent on private generosity for their half of
any building funds. Thus, the greatest institution of
democracy—the public school—continues in three-fourths
of the districts of the state on a semi-charitable basis.
Under these circumstances it is not surprising that our
schools are ‘inadequately housed and poorly equipped.

There is, however, a growing sense of the need of the
county’s assuming full responsibility for the material
equipment of all schools. The legislation of 1901, per-
mitting the county boards to reserve a building and
repair fund, was a step in this direction ; the legislation
of 1911, permitting counties to vote a county-wide ad-
ditional special tax, was a further advance ; and the final
legislative step was taken in 1915, when counties were
authorized to ‘vote county bonds for school buildings.
But an aroused public sentiment is required to give effect
to this legislation. To date, only three counties—
Beaufort, New Hanover, and Wilson—have sanctioned
a county-wide additional special tax, and New Hanover
stands alone in voting a county bond issue to carry out
a county-wide building program.

In the meantime, help is promised from another source.
A recent supreme court decision sustains the position
of the Alamance county board of education, holding
that schoolhouses are an essential part of a school. This
decision covers repairs and additions to old buildings.
Should it also cover new buildings and grounds, as inter-
preted by the attorney-general, county boards of education
can assume full responsibility for the material equipment
of all the schools of the county, and secure the levy of
the needed taxes therefor, if they are so minded, with-
out submitting the question to popular vote. Whatever
the final interpretation of this decision, this should be
clear: Until county boards of education can assume

 

responsibi
the possibilities of a co
realized, and districts, lyi
the one, to have a model
kind of a schoolhouse.

development of our county system.
education are not authorized to assume

bility for more than a six mo
of this length is inadequate.

_ tional special school tax, but, as stated above,

 

 

  

Z
nts 95
» Limrrations AND CoNFLICTING DEVELOPME

lity for the material equipment of all eA
unty school system can not be

ing side by side, will continue
plant, the other, the poorest

i ious limitation on the full
There is another equally serious ee

financial responsi-
nths’ school term. <A term
Thoughtful citizens of the

av eRe +
state appreciate this fact, but the constitution In mos

instances estops county boards of education — wre
i ithout the approva
i longer uniform term wit it the §
pia The result is a wide variation in school i
For example, in the cities, the average length a 2
eight and a half months; in the 2,000 special seh is , ~
saeines seven and eight months ; and in the other nn a
districts, six months for the first time this year, le i :
, e,¢e

i i lities are of long standing an

few counties. These mequa -
i injusti hildren of the less p

inflict a great injustice on the c ;
cia e andes To eliminate them, the general assem:

i ty-wide addi-
bly in 1917 authorized the levy of a county pee

people.

i ble action.
ounties have taken favora
a hand, the restricted financial Aig’ of
tion have lent strength to two
county boards of educa “ae ( Sue
i e the situation
ements which further complica ‘
preg sa of special tax districts, and the organ
i i ity districts.
ization of specially chartered or ci
» Even in states having a highly developed county system,

e are generally organized as separate districts.

—— artered districts in

i ially ch
The number of city or specia 5 :
North Carolina is, however, unusual. Progressive com:

munities chafed under the slow ——- . sg —
i i titione
hools. To gain relief, they pe
Gaaakts for special school charters. Altogether, there

 

 
 

    

96 Pusuic Epucarion ww N. orTH CAROLINA

are now 136 such charters alive, 27 of which were issued’
between 1875 and 1899, and 109 since 1901. These city

‘districts range in size from, Winston-Salem to -three-
teacher centers,

The charters of city districts differ from one another

in important details, and, along with their respective
amendments, constitute a mass of special school legis- /
lation of which no one knows the extent.!_ These charters
bear, however, certain common marks w
Most of them are drawn without regard
that should exist between city school
State school system. Not until 1901 we
required to make reports; at that time

brought under the general supervision o
partment of education.

to make reports, certifi
salaries and adopted te
general school laws or ru

 

to the relation
districts and a
re city districts
they were also

f the state de- 4
But long after that, they failed

A
cated their own teachers, fixed :
xtbooks, without regard to the j
lings of the state board of educa-

 

 

ment of education.

These city charters are distinctly inadequate as guides
in the development of modern city schools. They ordi-
narily provide for a board of education, the establishment
of graded schools, the employment of a superintendent
and teachers, and bestow on the voters of the district
the right to vote school taxes up to a specified limit ; but
they do not clearly define the powers and duties of the
board of education, the relation between the board
of education and the superintendent, the duties and
powers of the superintendent, the status of the teachers—
in short, the details upon which the modern city school
really depends.

Written by different men, at different times and under

 

 

a

ents 97
LIMITATIONS AND CONFLICTING DrEVELOPM

i isi these
different circumstances, the specific ome ei
city charters vary enormously and withou Oe

le. the maximum property tax that may si
ads f a total annual tax of $50 to an annua =
po poser each $100 of assessed property value. aii
pat range in membership from 3 to 24 soe protic?
are selected in various ways: by county boar 7 ews
ion; unty boards of education and county oo
pio i b town commissioners; by town commiss .
see peters of education; by city aldermen ; cn
ne pews and local boards of education ; nascent
aeons they are elected by the people, and — one
ominated in the original charter select :
ss coun Self-perpetuating boards are obviously

indefensible.

boon
Charters issued prior to 1901 were undoubtedly a

he districts that
to the cities getting them, but most = . tanageacinne
rn sg en sec gs nc the creation of
ya mall cael districts reacted unfavorably on
> serie unit. It reduced the resources of a ee
lowered its dignity oe ee ee sas.
porsies 2 ia seams none successfully and oo
i a hore tly of the county system, cities must be fe)
ed 53 ‘a financially able, after bearing their due
eee ei “ county and state school taxes, to support
parang atone basis. There are, perhaps, —
aca 30 of our cities so cireumstanced that they shoul
s pete to continue as separate eee eli
in sk event, there should be sonioe9et rire a
oe oat ange pa or seb the present legal
jinn administration, increase public in-

itting the
1901, these centers could have taken advantage of the law perm:
1After 7 8 COU
formation of special tax districts.

   

|
98 Pusiic Epvucation iw N ORTH CaRoLINA

terest, and bring city school legislation into conformity

with the constitutional mandate requiring the estab-

uniform system of public schools.’’ The
specially chartered districts—numbering ap-
proximately 100--should be returned to the county system.

This will be to the advantage of all concerned. The
county will gain in resources, prestige,
ness, and will be better able to employ
of superintendent and supervisor, thus s
administration and supervision of its o

of the schools of the former small specially chartered
districts. When these small specially chartered districts
are rejoined to the county, they will become special tax
districts, of which there are already approximately 2,000.

Special tax districts, as suggested, are integral parts
_of the county school system. Such districts vote an
additional special tax, beyond the state and county school
tax, for the supplementary support of their schools. As

@ means of increasing local rural school support, special
tax districts have proved a great success.

the amount levied locally in rural distric
$16,000 in 1901 to

been the chief mea
rural education,
best rural schools
tax districts,

Despite the immediatel

remaining

and progressive-
the highest type
ecuring a better
wn schools, and

 

 

  

For example,

ts rose from
$810,000 in 1918. They have also

ns of arousing renewed interest in
and of effecting consolidations. The
of the state are found in these special

 

 

y favorable results following
the creation of special tax districts, their formation has

caused wide differences in educational opportunity, and

produced a condition which threatens to hinder future

progress. The law of 1901 removed all limits on the

bounds that the county board of education might set
for a. special tax district. With this freedom and under
the impelling desire to secure better schools, the school
districts in most counties have been gerrymandered be-

imag yond belief. Special tax district lines include or exclude

 

 

OL Err—WKr—T AE

—?

Ents 99
Limirations anp Conriicrine DrvELoPM

: "
farms, according as the owner 1s icine phe ;
able; they extend far up and down railroa er ag
and doves rich river ee oe cae a
property, particularly of corpora — ST eae ie
the benefit of the particular district. Ae
pete districts, although they number eho. a
fourth of all the school districts of the state, p
bulk of the taxable wealth of the state. ek.
The formation of special tax districts - partes
duced most of the objectionable features of the a fis
ous + system. There are rich districts and poor :
aoe ochd schools and poor schools, literate and vee <
ti 8s in short, educational development has =
ies vial uneven. Moreover, for the poorer —
+ ane Mapa present conditions little hope. It sey :
nila for the county boards of RE nti ite
liberal interpretation of 8 Ee earasicate aoe
rovide these districts wi
sii = appropriate tae at sen Brrr
but it is, ordinarily, impossible or an preci
d their school terms beyond six months, a ;
iets unable to help themselves. The naa opie
looking districts long since preémpted anne aweebtagred
ble property and particularly the oe . ae
might properly have fallen to the less wan “s afro
even if the poorer districts were now favora find i
Tee eee oe aan ae of the |
i sma
pint gc setae be levied is so limited. \
Sheik acces! inequalities render the ead ine
a nominal affair. A county-wide additiona oe
school tax would correct conditions, but i ct he )
districts, as a rule, bar the way to eee a pommaaet et
have long enjoyed exclusively the re Ragtigenstcs
even though they may have no more be spear
neighboring district, are reluctant to share

 
 

 

 

a
ae I meme ——T

100 Pusuic Epvcation tn Norru Caroriva

To redistrict the counties with a view to a more equitable
distribution of taxable and especially of corporate prop-
- erty is impracticable, A constitutional amendment
extending the compulsory school term to at least eight
or nine months is the most direct course, but probably
could not be carried, following so closely the recent ex-
tension from four to six months. County boards can,
however, be empowered to assume full financial responsi-
bility for schoolhouses and school equipment, and the
state can throw more of the responsibility for a six months’
term on the counties, using state funds more largely to
make uniform and extend the school term. The further
creation of special tax districts can be stopped and their
present powers limited, and all can join in developing
sentiment for county-wide additional special school taxes
and schoolhouse bond issues, Otherwise there will con-
tinue to exist side by side a quasi-county system and a

close and exclusive district system, with glaring inequal-
ities.

not commanded the full confidence of the people. We
have experimented with almost every known method of
selecting them, except selection by the qualified voters
of the county at Separate, non-partisan elections.1 For
example, our county commissioners have at two different
times acted as an ex officio board of education ; at one
time county boards of education were appointed by the
justices of the peace and county commissioners ; at another,
by the general assembly, and now by the general assembly
on nomination at party primaries. None of these methods

 

1At such elections, nominations are by petition, the names of the nominees are
entered alphabetically on non-partisan tickets, and the terms are of such length
and. expire at such different times as to guarantee stability and continuity of policy.

eT

 

 

ee

 

Farm Lire Scoooc—Craven County

 

NTY
ConsoLipaTep ScHooc—WILson Cou

TEACHERS’ HOMES—LARGE RURAL SCHOOLS

 
 

 

 

 

 

 

 

 

' Limirations anp Conruictine DeveLopmMENts 101

provides for the exercise by the people of a direct voice
in the management of their schools or affords an adequate
safeguard against partisan control.

Again, in the exercise of leadership and in the manage-
ment of the schools, county boards of education have
been seriously handicapped by their inability to provide
proper administrative and supervisory staffs. Up. to
1903 three dollars per day was the maximum salary
allowed by law to county superintendents. Between
1903 and 1917 the wealthier counties were free to employ
county superintendents and to fix their salaries, but the
poorer counties, those having a school fund of less than
$15,000—numbering 65 in 1903—were limited to a max-
imum of $600. In neither instance were provisions
made for supervisors. While the average salary of county
superintendents rose gradually from $796 in 1910 to
$1,298 in 1918, only with the passage of the new budget
law of 1919, when the state assumed half and in certain
instances more than half, of their salaries, has even the

~ highest of these salaries been attractive to trained and

experienced men.
Inasmuch as the state until recently placed so little

emphasis on effective administration and supervision, °

county boards of education generally looked upon su-
pervision as unnecessary and took only a limited view of
the field and function of the county superintendent.
His duties as they conceived of them were chiefly clerical.
Accordingly, a preacher, a lawyer, a doctor, a real estate
agent, a merchant, a farmer, in fact, anyone fairly well
educated and with a little free time to dispose of was
acceptable. As late as 1912 half of the county super-
intendents gave only part time to the schools, and even
now 17 counties have part-time superintendents.
Moreover, the office has until lately been exposed to
every kind of personal and political influence. County
superintendents were not required until 1917 to hold

cial i ii ce Sa PN San te

aie Ren cee

Pa hee Se ahi iain

pee Ts

cael” §-
baa eae

dee

ae ae
Remeer i y

  
      

 
 

 

102 Pusuic Epvucarion In Norru Carozrma

certificates.

Prior thereto good moral character and
two years’ ex

perience as a teacher at some time in the

only from one to two year:

On the other hand, few count
visors to assist the county su
County was the first to engage o
25 other counties have employ.
more years, and in 1919 14 coun

Supervision is not an established policy; a county may
have it this year and abandon it next. The facts are,
well qualified supervisors are not available,
do not appreciate their value, and, not
authorized to employ them,
additional expense.

in 1919 a small fund

y boards employ super-
perintendent. Johnston
ne,in 1912. Up to 1919
ed supervisors for one or
ties were employing them.

being directly
they hesitate to incur the

The state superintendent received
with which he has been able to co-
counties—some 23—in providing
e state paying one-half the salary;
to become general and effective
uture, the state will have to bear
the cost in all counties.

cation thus have as their executive

8 who in many instances know
schools than the board members
the exceptions cited, are without
hese circumstances, the adminis-
tration and supervision of the schools is necessarily weak,

elves, without professional guidance

supervisory officers, th
but if supervision is
within the immediate f.
& considerable part of

County boards of edu
officers superintendent
little more about the
themselves, and, with

 

s AND ConFLIC G a ‘
Limit ATION N TIN DEVELOE MENTS 103

: unty school system,

To ean we i EER shop educational

be, aig eo due to constitutional and reine
opin —— to the development of an unusual re -
preset and special tax ee at ee
or sm 7 , constitu ‘
sr rmreung the empl soo Yar to ho
= eae al eliminate most of the Sooty =
nine mont ve ment of a county system. I se
the full develop t practicable, then appropriate cial
amendment is no es formation of special tax distric 8,
—— ais. of specially chartered districts, a
_— he eee code for large cities, and eget
soe =. of the burden of a six months 7. i
pag Ye and cities.« The county should al:
on the ¢

apa: oth for school build-
nsibility especially :
eae Eo doit be concentrated on developing
ings, an

ie ‘2 ae
i tional special taxes an

senti r county-wide addi A
og gent The people should obtain a ri owe
= the control of their schools, and some —
aie enka be freed from partisan poe bose
ie ia enerously in p

e should co-operate more g' ee
peter education with adequate atta edi
poe administrative and supervisory § ‘

but we

 
oe aren mere = ——

 

 

 

 

(105)

 

PART III

5
3 =
o 5

dp)
SF
e
“Ts

 

 

 

 

 

 

 
 

 

 

 

 

VI. BETTER ADMINISTRATION

better administration, better trained teachers,
and better financial support. Each of these
topics will be considered in turn.

tate Boor etexton, Taig Bnane 15-88
pete: caw :
éz oficio state board of education, as has been

is not the approved type of board. For
ld be amended so as

te a lay board,

: \HE WAY to improve our schools is clearly through

pointed out,
this reason the constitution shou

to permit the general assembly to crea
composed of five or seven citizens, to be appointed by
the governor for prolonged terms, expiring at different
times, so as to guarantee stability and continuity of

educational policies.
the present board should be made

In the meantime,
responsible for the general administration of the entire
state boards should be

public school system. All other
dispensed. with—boards, for example, such as the state

board of vocational education, the commission on instruc-
tion in agriculture, manual training, and home economics,
the state board of examiners and institute conductors,
the state textbook sub-commission, and in certain in-
stances state normal school boards, such, for example,
as the board of the Cullowhee Normal and Industrial
School, of the Appalachian Training School, of, the
Cherokee Indian Normal School, and the boards of the
three state normal schools for negroes. On the abolition
of these agencies, the state board will assume the respon-

sibility, through its executive officer, the state superin-
[107]

 

pp EC

 

orate enredadieange te
 

 

 

 

 

 

 

 

108 Pusuic Envcation 1x Norru CaroLina

tendent, for formulating rules and regulations affecting
the organization and management of the public schools,
the erection of school buildings, the certification of
téachers, the management of the minor normal schools
and of teacher training in general; that is, the state
board will then exercise, through the state superintendent,
the powers. usually and properly so exercised.

In a soundly organized educational system, the lay

‘board, above mentioned, selects its executive officer,
known as the state superintendent, and fixes his salary.
This offieial advises the board on technical matters,
represents it in dealing with the public, the legislature,
and all parts of the school system, and is responsible for
carrying out policies determined by the board. . The
present state board, however, does not possess an execu-
tive officer in this sense of the term. The state super-
intendent is chosen by the people, to whom he is respon-
sible, and though, in effect, he is the executive of the
state board, his relation to it has not been conceived
from that point of view. The law should therefore be
modified in this respect; in addition, no time should be
lost in amending the constitution so as to permit the
appointment of the state superintendent by the lay
board of education above described. This amendment
will not only tend to remove the office from politics, but
will also place the board and its executive officer in a
correct relation to each other.

A state superintendent can not personally perform all
the duties that fall to his lot as executive officer of a state
board of education. To be effective, he must be pro-
vided with a competent clerical and professional staff.
Too often important duties are imposed on him and no
provision made for performing them. A single example
will illustrate what has repeatedly happened. Since
1868, the state superintendent has been authorized to
approve the plans for all schoolhouses erected by county

a

2 ec =

109
Betrrer ADMINISTRATION

i f
boards of education, and since 1903 se bead
i idden to expend public
ducation have been forbid ' ‘
ea schoolhouses not built according to plans so approved.
The state superintendent has, however, — ap
iti this excellent law; he. has never ,
position to enforce qe gad
ich g intervals, to p
able to do much more than, a : at
istri lans. No one knows
and distribute acceptable p raid
t on rural schoolhouses
much money has been spen i
i t value is approx!
ing the last sixty years. Their presen ie
eon $6,000,000, a considerable part of which ay
doubtless ‘ie wasted or ineffectually spent because 0

ay See
the lack of proper supervision’.
State superintendents are thus frequently left —
appropriate staffs, doubtless partly because the id e:
are unable to appreciate the magnitude of their tas

nd partly because the people do not understand war's
. ?
pe ah function. The superintendent’s staff shoul

care for the clerical details of the office, such age
pondence and the collection and tabulation oe " a
regarding enrollment, attendance, and ewe “ %
it should see that the laws and eapn Jb-eray a
he state board of ca re ;
POO we for participating in the state sea gps ar
in special funds and gpg aN ~— hs ‘ ih, sa
izati ildi loan, an mith- i
si it Digests the work and the needs of the nee
and publish reports thereon; it should also og hi
the people directly, explaining the educationa, - me
and plans of the state, helping to arouse cp nae
sentiment, to effect consolidations and to ara $8 rita
and grounds, advising with superintendents va ea pecs
with regard to the organization of their tN ea ne
of study, classification of pupils, methods of teaching

ss P tab-
1The general assembly in August, 1920, wisely appropriated $10,000 for the esta

ingi intend-
lishment of a division of schoolhouse planning in the office of the state superin

ent.

 

   

|
q
|
:

Secrecy Rapatien sawbrer Pgs
 

 

110 Pusuc Epvucarion ry Norru Carorma

in short, serving the people at al
in the interest of better schools.
There is a growing appreciation of the value of such
centrally directed administrative service. For example,
provision was made in 1901 for a supervisor of colored
normal schools. More recently, when school extension
work, instruction for adult illiterates, and vocational
education were inaugurated, a director was provided in
each instance. However, the state superintendent appre-
ciated the imperative need of professional assistance
long before the state was persuaded of its importance.
From private agencies he obtained funds which enabled
him to appoint a part-time high school supervisor in 1907,
- @ white rural school supervisor in 1910, and a colored
rural school agent in 1914. These agencies still bear
the entire expense ot maintaining these supervisors,
including their salaries, traveiing expenses, and steno-
graphic help. Their work has been invaluable and is
its importance is generally recog-

; the time has come when the state should and can
assume financial responsibility for it.

The staff required by a state de
varies with the size of the s
stage of development.
department of education
immediately before it wo

following stenographic,
ants:

partment of education
ystem, its organization, and
To equip properly our state
for the great work that lies
uld require approximately the
clerical, and professional assist-

1. Office of state superintendent, having, besides the
state superintendent, a secretary, a stenographer, and
supply clerk.

2. Division of schoolhouse planning, with a director,
one assistant, two draftsmen, and a stenographer.

3. Division of teachers’ certificates, with a director,

two assistants, three clerks, two stenographers, and
temporary readers,

1 times and in all ways

 

d1
Berrer ADMINISTRATION

ivisi isi i five supervisors
4, Division of supervision, with at a p
1 and three stenographers, in charge of:

White elementary schools;

Colored elementary schools;

High schools;

Vocational instruction ; es
Minor normal schools and teacher training ;
Instruction of adult illiterates.

no foo ©

5. Division of school extension work, with a director,
two assistants, and a stenographer.

6. Division of state school funds and school gener:
with a director, three assistants, four clerks, and one
stenographer, in charge of:

a. School funds, budgets, and accounting;
b. School records and reports;
I c. School tests and measurements.

The total expenditure for general administration in
1918-1919, exclusive of postage and printing, was ce
648. Of this the state paid $33,103, and — e
| agencies $10,545. The cost of a department 10 as
that outlined above would approximate e an-
nually, representing an administrative cost of between

: 1 and 2 per cent on total school expenditures. No successfu

business operates with anything like 50 small an jee
charge. To save on administration is to waste o fhe
end, for good administration vitalizes the whole ts _
and secures the largest return on all other expen : one
The special session of the general. assembly hg iid
appropriated $10,000 to establish a division em ry)
house planning and $5,000 for the better superv oe =
state school funds. The general assembly of 1921 s Ae
go still further, and that of 1923 should see the above
program well toward completion.

 
    

119 Pusiic Epucation 1x Nortn Caronina

 
   
  

Improved County ADMINISTRATION

 
   
  

- Better county administration is as imperative as better

state administration, for the state can not and ought

. not to administer the schools directly. At present

few county boards do more than look after the routine

of the schools. The majority of the county superintend-

ents are’ without proper qualifications, a fifth are part-

time officers, only a third have clerks, and 23 have at
present supervisors.

The first step in elevating county boards of education
to a position of influence is to set them in right relation
to the people and to their problems. This will call for a

‘change in the present method of electing county board
members. -

The second step is to provide county boards with com-
petent executives in the person of the county superin-
tendent. The office of county superintendent must be
placed on a strictly professional basis, that is, such pro-
fessional preparation and experience should be required
of all incumbents and future aspirants as will safeguard
efficiency and eliminate all who rely for appointment on.
other than professional qualifications. The office must
also be made attractive. Among other things, the
term of appointment should be lengthened to at least
four years so as to guarantee permanency and allow
time to demonstrate ability in the development and exe-
cution of policies, and the salary should be sufficient to
encourage young men and women to make the necessary
preparation, to keep them contented and enthusiastic,
and to hold them in service. The equipment of the
office should correspond to the needs of the work. The
counties should assume all necessary expenses incurred
in the performance of professional duties; under no
circumstances should such expenses be regarded as a part
of the superintendent’s salary, and proper provision

 
 
    
   
   
   
   
    
 

  

SraTESVILLE—IREDELL COUNTY

 
     
   
        
    
   
    
       
    
   
   
   
       
 

SANroRD—LEE CouNnTY

 
 

 

    
 

NEW TYPE CITY SCHOOLS

     

 

 

 

 
a cee

amen pn

 

 

Berrer ADMINISTRATION ‘ 113

should be made for clerical details. No county should
have less than one stenographic and clerical assistant,
and in the very largest counties there should be at least
two.
In the 15 counties having less than 50 teachers, white
and colored, 4 county superintendent, properly provided
with office help, should be able to administer the schools
effectively” if one supervisor is provided for each two
such counties. In the 22 counties having between 50
and 75 teachers, the superintendent should have at least
one supervisor; in the 40 counties having between 75
and 125 teachers, at least two; in the 18 counties having
between 125 and 175 teachers, at least three; and in the
5 counties having over 175 teachers, at least four.

The cost of the above plan would doubtless be three
times the present expenditure, or approximately $1,-
000,000 annually, but this expense should not be
borne entirely by the counties. The state quite properly
undertook in 1919 to pay half, and in some instances
more than half, the salaries of all county superintend-
ents, and half the salary of one supervisor in a limited
number of counties, 23 in all. State school funds can not
be used to better advantage than in procuring good
supervision of instruction. The state should, therefore,
place supervisors on the same basis as superintendents,
paying at least half, and when necessary even more than
half, the salaries of supervisors, thus reducing the local
expense of efficient school administration.

However, improvement in county administration will
necessarily be slow. Even if ample funds were at hand,
properly trained county superintendents and supervisors
are not now available from among the teachers of the
state, and it would be impracticable to import any con-
siderable number from the outside. Properly qualified

- county superintendents and supervisors have to be

educated, and this will take time. In the meanwhile,

ee ho ky ee eee
ee Saas

 

 

a 28

 
 

      

114 Pusiic Epvcation iy Norru Carona

the employment of competent and adequate clerical
and professional staffs should be made mandatory upon
all county boards of education, but the date at which this
mandatory provision shall take effect, in so far as it has
to do with the employment of supervisors, should be
left to the discretion and recommendation of the state
board of education. The position of county superintend-
ent as well as that of supervisor should be rendered secure
and attractive, and their selection should be subject to
the approval of the state superintendent. Finally,
every means should be employed—even to the county
board’s paying the school expenses of one or more of its
teachers—to encourage young men and women of promise
to prepare for these important fields of service. Com-
petent county superintendents should come first, for it
is futile to introduce supervision unless the superintend-
ent is efficient and ‘appreciative.

Imperovep Crry ADMINISTRATION

There is equal need of improved city administration.
For the small specially chartered districts, this will be
achieved by placing them under county management,
thus securing for them, as has been pointed out above,
a higher type of administration and supervision than they
can afford as long as they operate independently.

In the larger cities, the problem of better administra-
tion is not so much a question of better superintendents
as a question of better organization and better working

conditions. The superintendents of the larger cities —

are men of the highest personal qualities and professional
spirit, although in a few instances they lack preparation
and experience; summer work at a good university will
go far to correct these defects. Proper organization and
working conditions can best be secured through repealing
the thousand and one special city school laws, and enact-
ing, instead, a single, unified code for all cities.

115
Berrer ADMINISTRATION

r the
This-code should provide, on vs arn cog
ers a .

i f city school board mem e at
nt yenenidlere school election with as
nego r= the names of the candidates being se
sichabetlblly on the non-partisan ene ae we

i s of the board 0 g ;
the duties and powers 0 >
= es and powers of the superintendent, the cto
of teachers, etc.—all in harmony with the prov
system.
ing the general state sys
oe cae the interests of the state and to a re
h ai funds available for school purposes are su - :
; uarantee proper administration and we i
aye highest type of public schools, the mens =
‘ . . c na
hy down certain minimum requirements tha

i te as city school

, and fulfill in order to opera
page erent Bor example, the buildings, peor ot
i t should conform to the rules and regula se
Kae an elementary school 0

of thé state board of education, denn ee

t least seven grades and a standard four yea hs - :
pan isi i cities
should be maintained; a superintendent, and, in

having more than 30 teachers, at least = ir
holding the highest grade of copecnare 5 ' 208
visor’s certificates, should be employed, 2 . Q aan
school principal, and an elementary 8¢ a : = a
for each elementary school of the usual size ; re nytoer
school teachers should hold - nse vcmatn pacer
pris ‘ gicripastag meter il teacher’s certificate;
an ae and high schools should be in session

not less than 180 days annually, ete.

i i istricts wou
le city school distric
ork coast requirements and to develop along lines

é : d
of local interest, the proposed code would give unity an

strength to their systems.

districts.

 

|

 

 
 

 

  

 

 

IX. BETTER TRAINED TEACHERS

MPROVED state, county, and city administration
will secure an economical and efficient management
of the schools, but the efforts of superintendents

and supervisors to improve classroom conditions will
be ineffective unless they have experienced and well
trained teachers as co-workers. Our teachers, as we
have seen, are not well trained ; they are so lacking in
preparation that, whatever the other needs of the schools,
the need of efficient teachers is paramount.

The way to get and hold well trained teachers is simple.
Their tenure must be secure, their salaries attractive,
and appropriate teacher training institutions must be
readily accessible. .

The general assembly of 1919 and the special session >
of 1920, as stated before, materially increased the pay
of teachers, and the new certification system guarantees
the higher salaries to the teachers who are best prepared.
These higher salaries and the new certification scheme
will hearten the well trained teachers now in service, but
the salaries offered are not yet sufficient to induce the
ill prepared to get the additional training required for
high grade certificates, or to induce sufficiently large
numbers of young people to qualify themselves in the
future. It is still the unprepared who are really favored.

For example, an inexperienced high school graduate,
with six weeks of professional preparation at a summer
school, is paid $65 per month, with $5 per month increase
each year after the first for four years. Hence, a high
school -graduate working eight months a year will earn

. in five years a total of $3,000. On the other hand, a

graduate of a standard normal school, that is, a graduate
of a high school who has completed successfully two

[116]

117
Berrer TRAINED TEACHERS

: Re =
a normal school, receives an initial salary

int ach year
i 5 per month increase
api HG At these rates, for eight

ill earn in
‘mal school graduate wi :
manta sae a tae school and three’ years

1 of $2,280. Deducting $700, the
aged normal school education,
end of five years 1S

years’ work in
of $90 per mont
after the first for four ye

in teaching—a tota
estimated cost of a stan

the normal school graduate at hie f having prepared
financially by reason 0 ork
$1,420 poorer Hn @ than if she had entered the w

herself for teachin hool, and she is approximately

directly from the high se ven if $300 a year is allowed

financially e gir
er he wc graduate for maintenance during
e

y re N
t wo ears the nor mal choo T aduat eis m sc ool . or
I S h 1 ¢g pt h
Ww ill the nor mal school gr adua te or dinar il y make u p this
loss, for onl Vy a small pr opor tion of teacher Ss remain in the

ial dis-
ix years. The financia
oe ae tan 3 pete and the college

parity between the high The salaries of the well trained

te is even greater. on
Sat be raised at least sufficiently to place them
8

p y ) d. )
financial arit with the untraine Other wise the schools

will remain in unskilled hands.

discouraging
hedule has other
ee ponies are computed, for example,

osed ioed
ir oe Lat Accordingly, the coughing
ee h the length of the school term, which m 4
will vary wit hasten months. Wit

i muc
little as six months or as Pegi
e bh ecuerre as to salary, young erat ae
ua cted to prepare themselves thoroughly fo )
expe ;

ill well trained teachers endure these oo a ae
Ste Aceh ire must be guaranteed fe rena ee ar
it is 1 just, for the
cr mir a F fran meets and then be Seige
apincane h ghee six months in a factory or deo
near aia out a precarious living. To ars Fe
une e “all professionally trained teachers, that 1s,
sa.

 
 

   

118 Pusuic Epucatrion iy Norru Oarouma

those holding standard state certificates, on an annual
basis will, of course, put the short term school at a dis-
advantage. However, when rural school authorities
find that they must pay a well trained teacher as much
for a six months’ school as for a nine months’ school,
the natural tendency will be to lengthen the rural school
term. Unless this is done, we can not expect to have
well trained rural teachers or good rural schools.

Improvep TEACHER TRAINING FAcILitiEs

Next to good salaries and a good certification system,
the most important factor in securing well trained
teachers is adequate and appropriate teacher training
facilities. Our teacher training facilities are, as we have
seen, inadequate. We should be able to train, to the
extent needed,.every type of superintendent, supervisor,
principal, and teacher required by the public schools.
To afford such a range and variety of training, existing
institutions will need to be enlarged and strengthened,
new ones established, and, in order that unnecessary
overlapping and duplication may be avoided, the specific
work to be undertaken by each will have to be clearly
defined.

Among the existing teacher training institutions, the
State University is the oldest. Courses for teachers
were established there in 1877, both in regular term and
in summer. The summer school has always been well
attended, particularly in recent years; the enrollment
in 1920 was 1,200. The attendance on educational courses
in the regular term has not been so large, and the grad-
uates have been relatively few in number. There were,
in-1917-1918, altogether 86 of the university graduates,
including those from other departments, in public school
work; 25 were in rural schools, 31 in city schools, 19
were county superintendents, and 11 city superintendents.
However, the service of the University to the public

,HERS 119
Berrer TRAINED TEACHERS

ber of teachers
easured by the num
a Renee ‘Tie graduates have always exercised
as indeed out of proportion to their number.
; i sition of the University among
The commanding posi a
tate, the character of its stucel
the schools of the s : i
body, the probability that a larger progeny Saat
graduates will, in the future, become sg - sea
service of its graduates—all ieee sc Pee arshls i.
i i ‘ 1 of educ } 2
University of a schoo : sare
mae schools elsewhere, and the general err rly
is under obligation to develop such a department. i
’ The University has quite properly never his as
i ‘ ses for elementary teachers, an
to furnish regular courses }
should not do so in the future. Its efforts should be

y mn the re ra ti nm hool
concen tr a ted entir el 0 p pa 0. of high sc
teac her Ss and pr incipals, elemen tar tg pr mel pals and

i admitted to the Uni-
isors—provided women are acim de
wre i na bers al on the training of wag =
as > further
i : should also_ be
‘ty superintendents. There pe Se
ae as a part of the school of education, an woe
sion ies, equipped to make special ao we
the achievements of pupils, and to advise with sc

‘als regarding policies and plans. oe.
ere a Suni College for Women, established

in 1891, is the only state institution of college grade open
% icacaas! It has a dual function, offering ea opp:
cy) ni, oti ck
teachers. ever
ities. to women, and training Ne
a al caietiitae except those who pay tuition, zh
roueieed to teach at least two years. There were,

- 303 graduates in service. Teds

3 Sages of the Women’s College in ys —e
trated thus far chietly

ining work have been concen —
get reparation of elementary and high school wane
i ‘The sui for specialized teacher trainmg are

8 ecently opened i : in limited
d its doors to women, In

iversity ly recently op

1The State University on

numbers.

ers.

 

9

a

ee ed
 

     

 

 

 

 

120 Pusric Epucation 1n Nortu Carorina

now ‘increasingly urgent. The public schools require,
to an extent formerly unknown, competent elementary
and high school principals, special teachers, and well
trained supervisors, and women in increasing numbers
are aspiring to and being appointed to these positions.

The North Carolina College for Women should be
able to meet these pressing demands; but to offer proper
courses for elementary teachers—probably both a two
year and a four year course—strong courses for high school
teachers, for teachers of the household and the fine arts,
of public school music and physical education, for ele-
mentary and high school principals, and for elementary
supervisors, will call for increased support in the course
of a reasonable period. It will be necessary, on the one
hand, to enlarge the academic faculty, if it is to give
the requisite academic instruction, and, on the other,
to enlarge the professional faculty, and improve the
facilities for practice teaching. To accomplish this
larger work as economically as possible, particularly
the training of special teachers and of elementary and
high school principals and supervisors, the student body
should be enlarged, and additional dormitories and class-
rooms will have to be provided accordingly.

The East Carolina Teachers Training School, estab-
lished in 1907, was founded for the sole purpose of train-
ing elementary teachers. This purpose has been kept
constantly in mind and well fulfilled. Its professional
course covers two years based on graduation from a four
year high school. When the new dormitory is completed
it will have capacity for 300 students; it had, in 1917-
1918, 159 graduates in the field.

In view of the growing demand for well trained ele-
mentary school principals and supervisors, and the
further fact that the present two year course no longer
qualifies its graduates, under the new certification
scheme, for the highest grade of elementary teacher’s

a

rs

—

i

 

Berrer TRAINED TEACHERS 191

certificate, the time has undoubtedly come when the
East Carolina Teachers Training School should be
raised in rank so that it may offer four year as well as
two year professional courses. Its work, however, should
still be limited to the elementary school field, that is,
to the training of elementary school teachers, principals,
and supervisors. That this may be done economically,
and the teacher training facilities of the state increased,
the capacity of the school should be doubled.

If the school of education-at the State University, the
North Carolina College for Women, and the East Caro-
lina Teachers Training School are enlarged and their
work developed as we have indicated, the state would
have three teacher training institutions of high order,
admitting only graduates of standard four year high
schools. These three institutions thus enlarged and
developed would, along with the private colleges, be able
to train the city and county superintendents, the super-
visors, the elementary and high school principals, and
the high school teachers needed in the schools of the
state. They would also be able to turn out annually
probably 400 well trained elementary teachers having
had either two or four year courses. While 400 well
trained elementary teachers are only a fifth of the new
white elementary teachers required annually, it would
nevertheless be futile at this time to establish additional
teacher training institutions requiring for admission
graduation from standard four year high schools, for
probably the total number of graduates from standard
four year high schools does not now exceed 1,800 annually’,
and the three state institutions already considered, along
with the private colleges offering courses in education,
can for some years probably care for all of these who seek

 

1There were, in 1917-1918, 225 public high schools attempting four year courses,
but only 104 of these at most could be called standard high schools.

tone me tense ia

—
 

  
 

  

122

 

Pusiic Epucation 1n Norru Caroitina

to prepare for teaching. Such other teacher training
institutions as the state should maintain for the proper
preparation of the remaining 1,600 white elementary
teachers must for the present necessarily be of lower
grade, that is, admit students who have had less than
a standard four year high school course.

‘The Appalachian Training School and the Cullowhee  °
Normal and Industrial School are practically schools
of this non-standard type. The Appalachian Training
School has done invaluable work for the surrounding
sections, but it is not a normal school in the accepted
sense of the term; it is rather a regional high school,
doing teacher training incidentally. The same is true of
Cullowhee, although Cullowhee has recently attempted to
develop a two year teacher training course beyond the
high school. The impossibility of developing such a
course is apparent when account is taken of the fact
that there are only three counties—Cherokee, Haywood, = |
and Buncombe—in the entire mountain region that
maintain standard high schools. Boone had in 1917-
1918 43 former students teaching, and Cullowhee, 75.

However valuable these two schools have been as
regional high schools, the time has come for a reorganiza-
tion of their work. Henceforth their energies should be
devoted entirely to training elementary teachers, leaving
all high school instruction, as such, to high schools that
should be established in the mountain sections. These
schools should be modified to conform to the type of
normal school common a decade ago and still found in
the Middle West. That is, they should admit students
who have completed the seventh grade of the elementary }
school and graduates of non-standard high schools, and ;

 

Hanes Scuoor—ForsyTx County

 

 

} Corne.ivs HARNETT ScHoot—WILMINGTON
}

give them a two, three, or four year course planned to
meet the needs of elementary teachers. No graduates
from standard four year high schools should be admitted; b SCHOOL PLAYGROUNDS
such graduates should go to Chapel Hill, to Greensboro, .

 

 
Berrer Trarvep TEACHERS "123

or to Greenville, or to private colleges offering courses
in education. On the other hand, these minor normal
schools should not be a.blind alley; the way should be
open for their graduates to enter without loss the higher
institutions of the state, both public and private. Both
schools are well located to serve their respective sections,
and, if properly developed and equipped, should grad-
uate at least 100 elementary teachers a year.

This would still leave 1,500 of the 2,000 white teachers
required annually unprovided for. How are they to be
trained? Among the immediate means available is the
further extension of county summer schools and of high
school training departments. County summer schools
are valuable in reaching young people without high school
advantages who are teaching for the first or second time,
and who would otherwise ordinarily enter the classroom
without any special preparation. High school training
departments, on the other hand, reach tenth and eleventh
grade high school students. The work of such depart-
ments generally covers two years and is included as a
part of the last two years of the regular high school
course. It covers a thoroughgoing study of most of the
common school subjects and a limited amount of pro-
fessional work, including observation and practice teach-
ing. Students taking such a course usually enter the
rural schools and are far better equipped for such an
undertaking than if they had had only six weeks in a
standard summer school. Indeed, many students so
prepared develop into excellent teachers. Twenty-two ~
states now maintain high school training departments,

 

 

 

 

and they are generally recognized as one of the most
effective and cheapest means of reaching large numbers
of prospective rural teachers!. {

1These departments have been especially developed in Minnesota. A study of

their work has been recently made by Dr. Lotus D. Coffman, entitled ‘‘Teacher

Training Departments in Minnesota High Schools.’’ A copy of this study can be

_ obtained gratis on application to the General Education Board, 61 Broadway,
New York City.

 
 

 

 

 

:

124 Pusuic Epucatrion iv Norrn Carona

While county summer schools and high school training
departments should be used extensively for the time
béing, they are temporary expedients. The final solu-
tion of the problem of elementary teacher training is the
timeworn recommendation that the state establish ten
additional - normal schools of the type suggested for
Boone and Cullowhee, with the understanding that
they are to be raised, one by one, to standard normal
schools whenever this step is justified by the increased
number of graduates from four year high schools, and
by the demand for teachers holding the higher greiise
of elementary certificates. A single normal school of

the type contemplated, accommodating 600 students
and training 150 teachers a year, would cost, for plant
? >

Sree oie and for current maintenance, about

It would be inadvisable for the state to attempt to
establish at one stroke ten such schools, but we believe
that the general assembly of 1921 should provide for at
least. one. Otherwise there will be no state teacher
training institution east of the mountains to care for the
boys and girls who are without home high school op-
portunities, or for those in the 26 counties having no
standard high schools, either city or rural, or for
those in the 70 counties having no standard rural
high schools who have completed one, two, three
and four year courses in non-standard high schools pa
who expect to teach. As intimated, this school should be
located east of the mountains, and should prepare teachers
solely for the rural schools.

What was said above about the Appalachian Training
School and the Cullowhee Normal and Industrial School
applies with equal force to the three colored normal
schools. The school at Winston-Salem is the best of
these, but even Winston-Salem has much to do before
it will be a real normal school, while the work of the

Berrer Tratvep TEACHERS | 125

Elizabeth City and Fayetteville schools should be com-
pletely reorganized and redirected. Colored students
desiring a high school education should enter the colored
high schools of the cities, or the county training schools,
or one of the many private colored schools; the efforts
of the state normal schools should be centered on the
training of colored elementary teachers. The new
dormitories at Elizabeth City and F ayetteville, and the
new science building at Winston-Salem add to the
respective resources of these schools, but their facilities
and current support will need to be further increased if
they are to do efficient teacher training and provide any-
thing like the 350 new colored teachers required annually.
As a temporary assistance to this end, the number of
colored county summer schools should also be increased

and the state should co-operate actively in the develop-
ment of the county training schools now maintained in
19 counties.

The Cherokee Indian Normal School stands by itself
and presents a unique and difficult problem. This so-
called normal school has three regular teachers and a
part time music teacher, and an enrollment of 151 pupils,
with 4 above the seventh grade. The main building is a
dilapidated frame structure of four classrooms and an
auditorium. There is also a dormitory, with places for
24 students, completed in 1916; this provides the prin-
cipal and teachers with comfortable quarters, but there
has never been but one boarding student. As a public
school, the Cherokee Normal is doing an excellent service,
although recently crippled by the diversion of $500 of
its meager fund of $3,100 to the public school at Chapel;
as an institution to train Indian teachers for the 3,000
Indian children of the state, it is a failure.

Finally, there is need of a change in the management
of state teacher training institutions. When teacher
training institutions are well established and their main
  

 

 

 

 

 

126 Pusric Epucation 1x Norro# Caroiina

purpose can not easily be subordinated to local interests,
it may be well enough for them to have separate local
managing boards. Even in such instances, there should
be uniformity in the size of the managing boards, length
of term, and method of appointment. The state board
of education should appoint the respective local board
members, and also have final approval of the teacher
training courses offered. When teacher training insti-
tutions are small and local interests can easily divert
them from the purpose for which they are maintained,

it is contrary to the best interests of the state to place’
their management in the hands of local boards. To the -

end that the minor normal schools may be rigorously
held to the purposes for which they are maintained and
to the specific work allotted them in a general and unified
teacher training program, we would recommend that
the local managing boards of the Appalachian Training
School, the Cullowhee Normal and Industrial School,
of the three colored normal schools (Winston-Salem,
Elizabeth City, and Fayetteville), and of the Cherokee
Indian Normal School be abolished, and that the general
management of these schools be vested in the state board
of education, with an able and competent supervisor,
working under the state superintendent, in direct charge.

It is a simple matter of legislation to improve the
administration of existing teacher training institutions,
but to carry out the teacher training program outlined
above is a large task, which can not, for financial reasons,
if no other, be accomplished at a single stroke. The
general assembly of 1921 should, we believe, confine its
efforts chiefly to enlarging, strengthening, and redirecting
the work of existing institutions and providing more
liberally for county summer schools and high school
training departments. In addition, provision should be
made for the establishment of at least one normal school
of the type suggested, which: would admit students of

“ig
Berrer TRAINED TEACHERS 12

less than high school preparation and train them =
teaching in the rural schools. Though one additiona
normal school will not meet present needs, it is probably
all that can be undertaken now. Other similar schools
should be established in the near future, ‘and, indeed,
they must be established if the rural schools are to have

well trained teachers.
 

 

  
   

X. BETTER FINANCIAL SUPPORT

UR educational progress is obviously conditioned
on more liberal financial support. There is not

a branch of the system that does not require
larger expenditures. More money is needed for grounds,
buildings, and equipment, more money to lengthen the
school term and broaden school programs, more money
for teachers’ salaries, more money for teacher training
institutions, more money for administration and super-
vision—how much more, no one can tell. One thing is
certain—it- will require more than three times the present
amount even to bring present expenditures up to the
country-wide average!, and there is no reason to suppose
that good schools can be maintained more cheaply in
North Carolina than elsewhere.

Some doubtless feel that public school tax burdens are
already heavy enough; in isolated instances they prob-
ably are, but in the state as a whole public school taxes
are low. Surely our state, fourth in agriculture and
eleventh in the amount of internal revenue and in-
come and excess profits taxes paid, will not much longer
permit itself to be ranked near the bottom in public school
education and in public school efficiency. Others may
think that recent progress has been so great as to leave
little to be done to raise our schools to the level of the
very best. Our recent progress has, indeed, been- rapid
and gratifying, but the progress of other states has been
equally rapid, leaving us in 1918 practically in the same

relative position among the states educationally as in
1890.

 

 

1The country-wide average current expenditure per pupil enrolled was, in 1917-
1918, $30.91; for North Carolina, $8.49. The country-wide average outlay for new

buildings, grounds, etc., was $5.71; in North Carolina, $1.83. (Bulletin No. ii.
1920, Bureau of Education, page 67.)

[128]

 

lg PRR

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Berrer Financia Support 129

The financial support of the public schools is derived,
first, from the state literary fund. This comprises an
interest-bearing principal of about $1,300,000. Since
1903, the literary fund and current interest therefrom,
with the exception of > $2,000 appropriated annually
for schoolhouse plans, has constituted a revolving build-
ing loan fund, from which the state board of education
makes loans, at a low rate of interest, to boards of educa-
tion of the less favored counties, for the erection of school-
houses. No better use could be made of this permanent
fund than to employ it in financing new school buildings,
and, if possible, it should be increased by legislative
appropriations.

ie: principal of this fund has always been held sacred,
at times under most trying conditions, but it is still true
that any general assembly, if so minded, might dissipate
it. Dr. Joyner called attention to this fact in 1908,
saying: “The use of this sacred fund for any temporary
purpose would, as I see it, be a drive against past, present,
and future generations.” It is of course improbable that
the fund will be diverted from its proper use. There
would be an advantage, however, in so amending the
constitution as to make the principal inviolable.

All other financial support comes from public school
taxes, including special school district taxes, county school

taxes, and a state school tax, and from minor appropria- ~

tions from the general treasury, and from fines and for-
feitures which go to the counties. The returns from the
state school tax, levied on all the taxable property in bee
state, makes up the state public school fund, and it is o
this that we wish to speak in particular.

The state public school fund amounted, in 1919-1920,
to $3,500,000. What is left of this fund, after deduct-
ing minor appropriations for medical inspection and free
dental clinics, rural libraries, agriculture, the state board
 

     

130 Pusiic Epucarion 1x Norru Carorrna

of examiners, teacher training, etc., is apportioned among

the counties and cities to provide a six months’ school.

‘The minor appropriations from the state public school
fund are in certain instances for selected activities, for

which the counties and cities are primarily responsible,

but in which the state wishes to arouse special interest—

for example, medical inspection and rural libraries.
In such instances the state usually bears half the cost
.and the county or city the other half. In other instances
these minor appropriations are for functions that properly
belong to the state—for example, the certification of
teachers—and the state rightly assumes the entire bur-

den. Ordinarily, appropriations for teacher training are
made direct to institutions and from the general treasury.
The general assembly of 1919, however, made an appro-
priation for teacher training from the state public school
fund, placing this appropriation at the disposal of the
state superintendent. It has been wisely used to organize
county summer schools for teachers and to establish
teacher training departments in high schools, the state
sharing the expense with the local authorities. However,
to call upon local authorities to share in the cost of even
these temporary means of training teachers is, we believe,

 

an unwise practice. Teacher training is a recognized °

state function, and the state should assume complete
financial responsibility for it. The appropriation for this
particular work should be large enough to enable the
state superintendent to conduct, without expense to
local authorities, a county summer school for teachers
wherever needed, and to establish ahigh school training
department wherever conditions are favorable. Other-
wise, it may be impossible to establish them where con-
ditions are most favorable and where they can do the
most good.

In apportioning to the counties and cities what remains
of the state public school fund after all minor appro-

    

81
Berrer FrnancrAL Support 1

priations are deducted, the state seeks, so far as epee’)
(a) to equalize school tax burdens, (b) to equalize sc A
opportunities, and (c) to equalize efficiency—all approve
hy ends.
rete ial burdens are notoriously unequal, and arise
because the cost of maintaining schools is practically
uniform from city to city and from county to county,
whereas the taxable wealth back of each child to be
educated varies enormously from city to city and te
county to county. Accordingly, if the entire burden of
maintaining a six months’ school rests upon the oe
cities and counties, there will be the widest purge»
in the tax rates required to provide the needed funds;
the rate in one city or county may be 35 cents, and in

another, 70 cents. =
The hath attempts to reduce such inequalities for the

first three months of a six months’ school. It apportions
from the state public school fund to each county and
each city an amount sufficient to pay for three ae
the salaries of all teachers of every sort, and one-half the
annual salaries of the county superintendents and one-
third the annual salaries of the city ee
The respective counties and cities have paid into “a
fund at the same rate and in ae i to their taxable
nd each thus shares alike in It. ;
P The ieae also endeavors to equalize, so far as is on
ticable, the financial sacrifice for the second three a A
For example, when a county has levied a specified sc “9
tax rate, which approximates the average ohige : be
necessary to raise sufficient funds, along with i “ 7
received from the state, to maintain a six months se ey
and such county finds itself unable to maintain its schools
six months, the state makes an additional apportionment
from the state public school fund sufficient to keep the

schools open the minimum term.
In wie apportioning its public school fund, the state
  

 

 

 

 

132 Pustic Epucation in N, ORTH CaRoLINA

has this further end in view—the equalization of educa-
tional opportunities. All children, irrespective of whether
they live in Ashe or in New Hanover are now guaranteed
at least a six months’ school. The state can not, however,
stop here. In the past, we have condoned intolerable
differences in the length of school terms. The cities
provided eight or nine months’ schooling,

some counties
seven or eight months’, and other counties only four
months’;

; in short, a child’s educational opportunities

one place or
another. These same intolerable differences will con-

tinue, unless the state attempts to equalize opportunities
beyond six months, for some counties will provide eight
or nine months, and others will be content with six. A
part of the old equalization fund was for a time used to
lengthen the school term beyond the constitutional
minimum of four months, and there is no reason why a
part of the state public school fund might not now be
similarly employed, provided it were sufficiently increased.
It would probably be impracticable to attempt at one
stroke actually to equalize the length of school term,
but a beginning should be made. The limit of equaliza-
tion might well be fixed for the present at six and a half
months, later raised to seven, and so on until all the
_ children of the state enjoy a standard school year of eight
or nine months. Such action would serve the best inter-
ests of both present and future generations, and would
at the same time mean the gradual elimination of special
tax districts, the stumbling block to a county-wide special
school tax and to the development of efficient county
school systems.

There is a further serious limitation on present prac-
tice. The state makes no distinction between elementary
schools and high schools; it assumes responsibility for
the salaries of the teachers of both for three months,
and the city or county, with the exception noted above,

133
Berrer Financia, Support

for the period beyond three months. Owing to nag here ee
cost of high schools, this arrangement works ia! ae
cational disadvantage of the children in the less — se
counties. To do creditable work, high schools “or ite
a term of at least eight months. The expense e Meet
taining them entirely ey aT er aoe
less than five months and in
pall will be extremely burdensome to sweet
prosperous counties, and particularly 2 sie
an additional apportionment to maintain t a - i
six months. Many counties will not undertake a i
previously. pointed out, 39 counties are now = oe
standard high schools of any kind, and 85 have me fpr
ard rural high schools. ee fae ph oars eae
i enjoy enlightened leadership,

parte wall trained teachers. If good Big ae
are to be brought within the reach of all children,

state will need to contribute more largely — sat! -
their support. On the basis of the best practice e ab: e .
it will need, at least for the present, to contri ute =
less than half of the total instructional cost, ne in tl
poorer counties, after they have done their full —
duty, as much more as is necessary to maintain -* oe
ard school. The special session of the general a y
of 1920 wisely put the state superintendent in ane ion
to initiate this policy in a limited number of cases, we
ever, if its high school support is increased, it “ et
incumbent upon the state to exercise a more wa . :
care over the establishment and location of high a8 “
the length of high school term, the quality and aoe . =
teachers employed, programs of study, and the quality
“ cine use of the state public school fund a
also to equalize differences in school "gpengy s a ese
are as glaring as the differences in length of 5 00 es
and school tax burden. Up to a six months’ term the

    

 
 

 

134 Pusiic Epucation ry Norru CaroLina

less prosperous counties are now able to employ well
qualified teachers. They are, however, at a disadvantage
when they seek to pay higher salaries than the state
shares in, and particularly so when they attempt to
extend the school: term beyond six months. Neverthe-
less, that the less prosperous counties are now prac-
tically on a plane of equality for even six months with
the more favored counties is a tremendous educational
advance.

The state’s assumption of one-half the salary of all
county superintendents works to the same end. But
here again the less prosperous counties will ordinarily
be heavily handicapped. Even half the salary of a com-
petent superintendent, along with his incidental expenses,
is a heavy burden to many of them. Educational efficiency
is impossible without proper leadership. Appreciating
this fact, the state superintendent has interpreted the
equalization provisions of the six montlis’ school law as
extending to county superintendents. Accordingly, he
has assisted the several counties beyond one-half of the
superintendent’s salary in the same proportion as the
respective counties participate in the equalization fund
to maintain a six months’ school. Competent superin-
tendents are thus brought more nearly within the reach
of all the counties, and educational inequalities are thereby
further reduced.

For precisely the same reasons, supervisors should be
placed on the same basis as superintendents. That. is,
the state should pay a like proportion of the salary of
at least one supervisor for each county having fifty or
more teachers, and of one supervisor for each two adjoining
counties having respectively less than fifty teachers.
Thus, to bring within reach of all the counties at least
one strong supervisor would do more than any other

single step to quicken and inspire the teaching body
to improve classroom work.

Berrer Financia Support 135

The present uses of the state public arhonk ae ate
thus eminently sound. However, fully to equalize schoo
tax burdens, school opportunities, and school ais
is the work of years. In the meantime, provision shou ‘
be made for the next step. The state public school oe
should be so increased as to make possible the estab ish-
ment of county summer schools and ee
departments wherever needed, to provide more e C goon
for a uniform system of high schools, to provide a — :
ties with capable, trained superintendents and wit ie
least one supervisor, and to provide for ob ee te
length of the school term up to six onda hal persian
These increases are in addition to those that rie =
required to meet the necessary increase in teachers

salaries, to enlarge and improve present teacher =—
institutions, to establish at least one new normal school,

and to equip properly the state department of rst gga
Finally, there should be a state school budget.
present it is almost impossible to tell what the hese
priates from its general treasury and what it raises v
state taxation for public education. The various financia
provisions and appropriations are scattered in a score or
more of laws and in as many places. Ifa single educational
budget is not feasible, there should at least be a ear
for the state board of education and for all activities an

institutions under its control.

The foregoing pages have, it is hoped, placed mer
the people of North Carolina a just account of the e se
tional facilities and needs of the state. Progress depen s
in the last analysis upon two factors: (1) the willingness
of the people to look at the problem in a large pint
considering it not from the selfish standpoint of a ones
district, or even a county, but rather from the point o

 
  
  

Berrer FrnancraL Support 137

 

136 Pusiic Epucation 1x Norru Carona

Our suggestions involve large expenditures; but the

 

view of the state taken as a whole; (2) the willingness ‘ state can afford them. As our educational facilities

of the people to pay, up to the measure of their actual develop, our wealth will increase; we shall be able to

ability, for the improvements that have been recom- spend more still in training, the children of the —

mended. With a few words on each of these topics, Breaking the vicious circle of poverty poten aria
. this volume will be brought to a close. : , we shall have started a beneficent circle of mtellige
The State of North Carolina is a unit. In the long run and efficiency.

what is best for the whole state will prove to have been
best for its component parts. For many years, general
state-wide improvement could hardly have been effected;
separate steps had therefore to be taken—a step in advance
here, another there. There has been so much special
legislation that the state is, educationally, broken up in
ways that practically prevent harmonious or uniform
state-wide progress. In consequence, our present condi-
tions are irregular and at times unfair. The time has come
when, without unduly disturbing what has been any-
where accomplished, conditions should be established )
which will make it possible not only for progressive
communities to advance still further, but for backward
communities to join them at the front. Are the people

of North Carolina so in earnest that a combined move-
ment of this kind is practicable?

 

 

 

Ss

If so, after securing appropriate legislation, what can
be accomplished becomes largely a question of money.
Education is not cheap. It is expensive and it is every
day becoming more expensive. But let it not be for-
gotten that education is the most profitable investment
that a state can make. Wealth flows into the states where
the tax rate for education is relatively high, not into the
states where it is relatively low. ‘Too poor to maintain
schools?” cries out one of the greatest of North Carolina’s
sons, ‘“The man who says it is the perpetuator of pov-
erty. It is the doctrine that keeps us poor. It has driven
more men and more wealth from the state and kept
more away than any other doctrine ever cost us.”

 
 

 

 
 

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