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THE PRESENT STATUS OF INSTRUCTION IN xMUNICIPAL GOVERNMENT IN THE UNIVERSITIES AND COLLEGES OF THE UNITED STATES BV WILLI.\JI BENNETT MUNRO [Reprinted from the Proceedings of the National Munxipal League, 1908.] J"S J 3 :) -1 • 7 Rr-imed from ,he Proceeding, of .he Na.iond Municipal League, ,,08. The Present Status of Instruction in Munici- pal Government in the Universities and Colleges of the United States' By WILLIAM BENNETT MUNRO. Ph D Assistant Professor of Government at Harvard University Chairman of the Committee "It is manifest that the instruction of the people." wrote Thomas Hobbes in his Leviathan, "dependeth wholly 0^ nght teaching of the youth in the universities. " The Engl sh philosopher no doubt grossly overestimated the influence which the xnst.tuttons of higher education are capable of exertLg upo" the polmcal Ideals of a people; for the universities and colleges of the land constitute but one of the channels.-and perhaps Til °"' °' *'l"^^"°^ channels-through which sound poSfca doctrines may be disseminated. At the same time it fsto be reme„,bered -.at the universities and colleges of the United Stat s have come to include upon their roll! of attendance a steadily increasing proportion of the young men and vol ^ women of the land; that these do not repre^nt merely thf average run of American youth, but an element wWch Ts far above the general level in intelligence, ambition, and i^ the promise of pohtical capacity. It is not alone a select elLent orS; mad 'T^*'°"' '"* ^"^^^^^^ ^^^^ isalL t uni- ^Z^ 1 "P °^ individuals at the formative period of Hi, Suate mnd ^'^^.^'^^ «^*^««^«Jy P^^^tic nature of the under- graduate mind, Its entire receptivity, and its wholly undiscrim- mating acceptance of what maybe laid before it. 't is at"ws ciplSi^ltt'^^""'"" °" '""^ Coordination of Instruction in Muni. (i) 22388 2 INSTRUCTION IN MUNICIPAL GOVERNMENT stage more than at any other that a man's general attitude toward pohtical. social and economic questions is apt to be definitely frameti. Impre>sions made at this stage usually sink deep, and can be eradicated only with slowness and difficulty The task of the teacher of political science is therefore on- of extreme responsibili.'y and is the embodiment of an unusual Ti, T I, opportunity. It is the privilege of such teachers itte Task of to afTord annually to thousands of vouni; men the Teacher drawn from the best homes in the land, their first definite impressions concerning the nature of the Stat.' and the workings of its administrative organs. This IS a high privilege and presents an opportunity for influence such as IS given to but few professions. But the privilege is not more than commensurate with the responsibility involved; for upon the zeal and capabilities of the instructor will depend in large measure the extent to which the student's interest in the affairs of government will be aroused, the attitude which he will assume toward the problems of government when he goes out into the world, and the fund of useful information which he will be able to turn to account in fulfilling the duties of active citizenship. It was with these features in mind that the National Municipal League established, some years ago. its Committee on Instruc- tion, and entrusted to this body the task of securing such coopera- tion among teachers of municipal government as might prove possible, as well as such coordination of instruction in this sub- ject as the varying character of different universities and colleges might permit It was hoped that by mutual interchange of views betw-en instructors engaged in this work the efficiency of the instruction might be increased, and that the successful experi- ence of each teacher might be made to serve the profit of all. This task, the commit ee hopes, has been in some degree accomplished. It has not been the committee's aim to advocate any definite system or method of instruction in municipal govern- ment, much less to carry on a propaganda for any political principles. On the contrary it has onsistently recognized that the scope of mstruction must relate itself to the resources of the university The League's Committee on the Coordination of Instruction WILLIAM BENNETT MUNRO which undertakes it; that the methods of instruction must relate then.selves to the taste, and capabilities of the instructor who imparts ,t ; an.l that when instruction ceases to be a scientific and .mpartial presentation of facts, conditions and problems ^^d becomes the vehicle of any propaganda it forthwith ^ose, hs chTef c.a.m to the consideration of scholars. The chief work of the committee has been, therefore, not the advocacy of any prindSe or pract.ce; but the collection of such data as migh^ 's^e" "Jo of thoreT *\*''^^^«".'»°'J *he placing of this at the dis^osll ot those whom it might interest veil ?n'ir k''T^ ^'^ '^'' «'"*'™^ P°"^y »^' '• the inquiries of the committee have served clearly ^, establis. the fact that during the last decacL or mor^ Marked ** "parked development of the subje. t has taken Development in P'*^^ *" ^^'*' programs of educational institu- SpecUI Counet "°"^- '^^'^ °^ ^^^een years ago. independent mstruction in the subject of municipal eovem ment ^,3 ,ff^„,j ,^ „„,y ^,^^^ ^^ ^^^^ ^^ ^^^ largest unrsu" studv ZT7' '"'-'n"' '""^°^^''' •* *^ -^-' ^'i « - fie ci o Tr^dn i! T''""^ '^""''^^''' ""' ^°'- the ordinary under tetL. t "'"'"* ''"^' '°"*'^''''-' '- endent'and d s- X s nd thVn ""Z^ '' "'^^ ^^^" '^'^ ---'ties and colleges and the number seems to be stead' on the increase cou^rse^rtLlt'^^T "°^ ^^^^^^^^ ' '^^'^^ --^^r courses on different aspects on municipal government- other large institutions of the Middle West afford froi^ one ;o our courses each. No Eas .m university provides more han I smgle distinct course in die subject; Ld some'f Them do not offer even this. Many Eastern colleges, however, are under ak ng work m this special direction, and intimati; nas come to the committee that others are planning steps in the ^me direction. President Reed of Dickinson College pl . Irite^To state his conviction "that a good strong independenrcour^ LTn^' and^'"" "°"'' '^ '' ^'^' a/vantag": to Amen^an ,inlT u ^''P'"^^^^ the hope that one may be est-vblished ftyof'pu^^^^^^^^^^ Chancellor Mccormick of the uXer' sity of Pittsburgh reports that he is "preparing to ^v hnrn„nh mstruction in this important branch nexfyeaf. '' SI courar mg reports to the same effect have been Le vcd b, tne com mittee from a number of other institutions. J . ieed there sLms to be every reason for thinking that ^he next C He wiU w tTss th^wKT'. "*'"?" ""' ^°"^^^*^ " --t in t' is sub ect than that which has marked the past ten >ears Owing to the limited nature of their resources manv insti utions have not found it possible to establish' iTdepLd nt nstruction m municipal government, but endeavor to have this subject dealt with ia connection with their generaTcourses In pohtical science, sociology, or economics. Courses tn American government, if they are at all comprehensive in Ipe must 'VILLI AM BENNETT MUNRO f^l h, T' "''"* ""'"'^ '^' government of citic. Instruction i Hon " ^"*"«,"^"'^' ''' ««'««' "tent leu.I .he student into the held of nrmuupal ta. ^ "^"^^ °^ ^°"^^- -^*™^tors ha've intimf ted their intention of gmng more time to this branch in view of the mcreasing importa- ce of ine city in the general system of Amencan government." With most of the Laller inTt t ^ trdesrHT;* *'; *^""'"" '^ "^^^'y °- °^ financial res^u' is- the desirabihty of more instruction is fully recognized but as m many cases only one instructor is provided for the who^ It 1 c:^zT' '' "^^'^ "-^^-^^^ '^^ "- ^^^ aff^SeT it ha?"''' '".','^'^"°" '" """^^'P^' administration is afforded, it has apparently proved its popularity with the student M..-:-,„. body. The largest single class in the subject is that at Yale University, ^ .ere Prof W B T?ailey's course has a tot->i enrolLnent of"4,i students, but the cours: . . , this subject at tU and of fy ■ ^"'^^''^^^y °f Chicago m-:, b'-red 6 last j r and of this number over 8o were graduates. T..e cours^ in mumnpal governme.. .t Harvard numbers regularly abou^^oo fTom n )T'Tr''''' ^-^•^•^^-- -P"^ an attendanc °of irom 50 to 75 students m special courses of this nature. This Municipal Instruction Popular with Students 6 INSTRUCTION IN MUNICIPAL GOVERNMENT whrreltTsr j:^'^ ''- '^-'^ ^°^- °^ undergraduates tion with IL , ^^^' ^"'°""' «^ instruction in connec- No Approach J^^ natations. Some combine both methods to Uniformity *^^">' '"^quire each student to present a thesis in Methods of °'" ^'^^^ en. bodying the results of personal Instruction mvestigation into some phase of the v k sinnc T ^- ^«^«'oped by informal class-room discus % WILLIAM BE.VNETT MUNRO and these organizations take an active interest in local politics Many other institutions, however, are debarred by thefrlta- tion from this form of training for their students. "We a^a country cdlege," writes one president, "and you know what handicap that impUes." Instructors seem to recognize Vthe whole that actual contact with political contests, e^en in some veiy humble capacity, is vexy useful to the undergraduate Attention is devoted by colleges, in the main, to the study of Amencan cities; only a few broaden their work so as to include Scope and m "'"ti^ i°^ ^"'"^'^^ '"'^ administration. S^dy Z '^^'"^"*^'^ ^^y- although in a few insti- Study tutions nearly half the entire instruction is . devoted to this branch of the subiect t^nrr,- instructors find advantage in the use of a syllabus or oTt hTs IrThf ^^n-= ^"* t^« -ionty hJve no'fol o^ed this plan The committee has been able to secure several of these outhnes. and has noted the care with wh,vJ.M ? evidently been prepared and the testronrwhich tey'^^^^^^ the substantial character of the work done. On of the ve^° Unld'star trr-'^^^'^'^^" °"*^^^« *^« boundf of h^e united States-the University of Havana, where elabor^tZ professional tutor and the vendor of printed notes Th. structor who announces, at the berinninrof h , *°" what reading will be required duig " "Lr th rebT'' 'T Tht • TruTor-^ " *^: P^^P-ion ofr^^^^^^^^^^^ ihis IS true, of course, only where classes are large As it ,, sarcely practicable to print a new syllabus each year the use 8 TXSTRUCTION IN MUNICIPAL GOVERNMENT committee should prepare a more or less detailed outline of a course on municipal government, embodying not only a syllabus of lectures but bibliographical apparatus of an elementary sort hsts of topics suitable for class essays, and other like agenda' Such a publication would of course have its limitations of service- but It might prove very helpful in many smaller institutions wnere the study of municipal govrmment is undertaken only in an elementary way. In discussing the status of instruction in municipal govern- ment at the present time it wou'J scarcely prove Profitable to present all the details which the committee's investigations have servred to disclose. The various data have all been carefully tabulated and are made available in the appendix to this report It should be stated that this table does not include statistics of instruction offered in professional schools, many of which include in tr.eir curricula courses bearing rather directly into the broad field of municipal administration. Many of the larger engineer- ing schools aflford instruction in various phases of municipal engineering and sanitation; some law schools offer courses or parts of courses dealing with the subject of municipal corpora- tions, their powers and legal responsibilities; the best equipped medical schools give instruction in municipal hygiene and the protection of the public health ; various schools for social workers give training, both theoretical and practical, in the meth ds of municipal poor rehef, charities, and civic betterment in general, while schools of commerce and business administration devote attention to municipal accounting and kindred subjects. The amount of instruction thus afforded would, however, be difficult to tabulate in any accurate form. The results of the inquiry have been distinctly encouraging and show that the outlook is more promising than ever. Under the committee's auspices arrangements were made for holding, in connection with the annual meeting of the American Political Science Association at Richmond, Va., a round table conference on the methods of instruction in municipal govern- ment. The conference was held at the Hotel Jefferson, Rich- mond, on the morning of Thursday, December 31, and was well attended Prof. F. J. Goodnow of Columbia University Round Table Conference on Methods of Instruction WILLIAM BENNETT MUNRO q opened the discussion with a r^sum^ of his many years' experi- ence in the teaching of the subject, giving his views as to the scope and method of a university course on the government of cities. The speaker emphasized his opinion that the subject of municipal govern- ment should not be made available to students until they had already obtained a grasp of compar- ative administration in general, and that instruc- tion m the special subject should not be open to undergraduates until at least the junior year of a college course. The city should not be studied, Professor Goodnow thought, moreover, as an isolated umt, but as a part of the whole governmental machine hence the relation of the municipality to the state ought to b^ a guiding thread. The speaker also felt that a well-organized course on municipal government ought to include a study of European cities in order that the comparative method might be profitably employed. Other matters such as the nature of the lectures to be given by the instructor, the value of thesis work by students, and the need of a "source book " as an auxiliary to etticient teaching were touched upon briefly. Prof. Henry Jones Ford of Princeton University dealt with the purpose and aim of instruction in municipal government An effective course in the subject ought to be st^-v ;iy disciplinary in Its nature and ought to train the student ir th^. ase of official data rather than set before him a mass of information in the form of lectures. The actual information which the student carried v^th him from the class room was, he believed, a consideration of the very shghtest importance. Prof J. W. Gamer of the University of Illinois discussed at some length the question as to where, in a general course of in- struction, the main emphasis should be placed. He was not in favor of devoting any time to the history of municipal insti- tutions and he thought, moreover, that too much time was generally devoted to the study of municipal organization, to the powers of the different municipal officers, and to the framework of administration. More attention should be given, he felt, to municipal functions, to the actual exercise of the citv's nowerc and to the economic aspect of the whole question. lo INSTRUCTION IN MUNICIPAL GO\'ERNMENT Prof. J A. Fairlie , the University of Michigan called atten- tion to the stnking utility of the subject as a field for inductive study. The vast and heterogeneous nature of the material available for the comparative study of municipal government rendered this special field particularly well suited to research work of an elementary sort. Students should be required toexamine carefully selected portions of this material and to present reports embodying generalizations drawn therefrom. No other branch of political science affords better facilities for work of th, nature Prof. W. W. Willoughby of Johns Hcpkins University con- tinued the discussion, speaking of the plac . which the study of city government ought to occupy in the general political science program. It was arranged that another round table conference on the same subject should be held in New York during the last week of December, 1909. ~mm^mm atten- uctive aterial iment I work amine 3ports ranch ature. con- dy of ience a the ek of APPENDIX FmiSm^: 13 INSTRUCTION IN MUNICIPAL GOVERNMENT I 9 1 •a be 0) u iJ Be rt ef ^ .*s .2 g £ = E S c i « ro •* >o \0 t^ ^ E c P 5 5 53 S ^ ^ ii 3 rt ni cd cd (U ^ HH hQ o> o WILLIAM BENNETT MUNRO 13 o 1 « • 11 M M W M t^ t^ m M • r^ « • ■•>»■. 00 ; • ■ m . ... ■ « . DO ; ; • 10 . . fO M 5^ j:-^ Z Pi^. :-4 .ape £?? o ^.6 - ^ 73 J3 a OS ■^ •"• *3 h cs a c a o > r 2 ^S S § .s-a<§ 4) C MM ^•5 • ■di . r <1> o o t< w JS S M ^ S 'K S 4) > !)„ < O be ^ ir^5 ii o .>" O .; „ 3 — 5 . S S ^ P = „ O rf O aj ? * -^ « c •7! C i2 "C o & .M o S ^ ^ £ .2 3 O :S M 5 2 2 ^ ^li 2 ,- rt o c ii i^ l^.i^s.o o o T t; J<( ^ CJ rt ffl««m«m6'cjoouoo5d o o "1 'O t^ X c^ o w « ro Tt to so M W M « e* r» 00 o o CI W C* CI Ci f*5 f*) m ^ 3 .0 o i > i v. > V 1 •> niversity of 1. 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