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BULLETIN OF XHE

CAUFORNIA
TEACHERS' ASSOCIATION

Supplement to the Sierra Educations^ News

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State Uniformity and State

Publication of

High School Textbooks

BRIEF AND REPORTS BY

California High School Teachers' Association

California High School Principals' Convention

California Council of Education

State Teachers' Association

SEPTEMBER, 1916

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III

BRIEF AND REPORT ON

State Uniformity and State

Publication of

High School Textbooks

BY A JOINT COMMITTEE REPRESENTING

California High School Teachers' Association

Lewis B. Avery, Assistant Superintendent of Schools,
Oakland, Chairman.

California High School Principals' Convention

Noel H. Garrison, Principal High School, Stockton,
Chairman.

California Council of Education,
California Teachers' Association,

W . L. Glascock, Principal High School, San Mateo,
Chairman.

365358

J^ »- o

PREFATORY NOTE

At the last session of the Slate Legislature (1915J a committee was appointed
for the purpose of investigating the entire matter of state publication and dis-
tribution of high school textbooks. This committee, early in 1916, met in Eos
Angeles, with a committee representing the High School teachers of the state.
An adjourned meeting was held at San Francisco in May. Arguments were
presented on both sides of the Cjuestion of State Uniformity and State Publica-
tion of High School Textbooks, the State Printer and his associates represent-
ing one side, and high school teachers, principals and superintendents the other.
A supplementary brief is herewith submitted in hnal reply to the arguments
presented by the proponents of State Uniformity and Stat? Publication. This is
made necessary in order to correct certain statements made l)y the proponents
and to show the fallacy of certain of their conclusions, which are based upon
mistaken premises.

This Bulletin is the result of Committee work on the part of representatives
of the California High School Principals' Convention, the California High
School Teachers' Association, the California Council of Education, and the State
Teachers' Association. It is thus the expression of practically the entire teach-
ing body of the state. The arguments advanced are characterized by breadth
and scope, based upon knowledge and experience.

Part I of the Bulletin concerns itself chiefly with tlie economic considera-
tions of Uniformity; Part H deals mainly with the educational phases of State
Uniformity.

At its meeting in Fresno in January last, the High School Principals' Con-
vention went on record as against State Uniformity of High School Texts. A
committee representing this convention has been working in conjunction with a
committee appointed by the Fligh School Teachers" Association at its regular
session of 1916 at Berkeley. This Association voted unanimously in favor of a
resolution opposing .State Uniformity of High School Textbooks. The Chair-
man of this latter Committee, as Chairman of a Committee from the California
Teachers' Association, two years ago, instituted a state- wide investigation as to
the attitude of the school people of the state regarding the question at issue. The
replies were practically unanimous against state uniformity. It thus appears
that the statements and conclusions here presented stand not onJy upon the argu-
ments here outlined, but are backed by the opinions of the workers in the field,
these opinions being based upon their experience, their observation and their
intimate knowledge of the real needs of the schools.

The articles published in the January and February issues of the Sierra Edu-
cational News, and reprinted in pamphlet form, have been in such demand by
teachers and the public generally, l)()th in California, and throughout the
country, that the edition is entirely exhausted. This demand has made it seem
wise to issue a large edition of this Bulletin.

In issuing this Bulletin, under the auspices of the California Teachers' Asso-
ciation, a charge of 10 cents per copy has been fixed, to defray cost of publica-
tion. Address for further information —

California Teachers' Association,

Monadnock BIdg., San Francisco, Gal,

STATE UNIFORMITY AND STATE PUBLICATION OF
HIGH SCHOOL TEXTBOOKS

The accompanying brief and arguments are
submitted by the joint committee, represent-
ing various educational interests of the state,
in answer to the advocates of State Uniform-
ity and State publication of High School
Textbooks.

Important issues raised relate to the com-
parative actual cost of state published books
and those purchased in open market; the plan
of furnishing books free by the school dis-
trict; who were the early advocates of free
textbooks; edixational lealership in the State
vs. State imlformlty and State publication of
elementary texts; advantages of freedom in
selection of books to meet the needs of differ-
ent localities, and like significant issues.

ECOXOMIC COXSIDERATIOXS

proponents mis-state reasons for
teachers' opposition

In the brief and arguments which we
submitted at Los Angeles and San Fran-
cisco we did not question in any manner
the sincerity of the proponents in urg-
ing state uniformity of high school text-
books. We had hoped that in these dis-
cussions our own sincerity would be
respected in like manner. We have stat-
ed clearly and forcefully that we repre-
sent the educational interests of the
high school pupils of California ; that
our sole aim is to preserve the efficiency
of the high schools of the state and
prevent any action which will tend to
render high school instruction less prac-
tical. We must, therefore, challenge
the statement that the majority of the
teaching profession are opposing state
uniformity because of a "desire for an
unlimited number of selective texts.''
To intimate that the great majority of
teachers are actuated by such a motive,
or bv any motive other than the con-
servation of what we earnestly believe
to be the best educational interests of
California, is an unwarranted reflection
on the sincerity of the great body of
teachers of this state.

sarcasm worse than futile
We must also challenge the sarcastic
reference to the attitude.o.f the teachers
in advocating free high school text-
books. ''Sarcasm," say the proponents,
"is futile in argument, hut we are in-
clined to submit the question: With
their indorsement of' free textbooks for
high schools, why liave the opponents
left this proposal and propaganda to the
printers and the working people of the
stated' In reply we have only to cjuote
a report of the California Council of
Education, in which a system of free
textbooks for California schools was ad-
vocated by the teachers as early as 1902.

The teachers of California have not,
as the proponents affirm, been slow to
show "consideration of our tax-payers'
burden." On the contrary, they were
the first to advocate free textbooks for
the schools of the state. In the light of
this fact we shall concede that the sar-
casm of the proponents concerning our
advocacy of free textbooks is indeed
futile, as they have suggested.

REAL REASON FOR CALIFORNIA'S LEADER-
SHIP IN EDUCATION

It is very gratifying to note the cap-
tion on the proponents' brief — "Califor-
nia a leader in education." Our state
is, indeed, one of the most progressive
of all the American commonwealths,
thanks to that very body of teachers
whose "good judgment and considera-
tion of the tax-payers' burden" is ques-
tioned by the proponents of state uni-
formity. The proponents would have
you believe that this leadership is due to
the system of state uniformity and, state
publication of elementary school text-
books. \\'e wish to point out that the
only general estimate of the efficiency
of school svstems in the United States

IS that published in 1912 by the Russell
Sage Foundation. In that estimate the
high schools of California, working un-
der a textbook system which the pro-
ponents have denounced, were second in
rank, while the elementary schools,
working under a textbook system which
the proponents consider ideal, were
fourth in rank. We would also point
out that every one of the twelve states
at the bottom of the list have state uni-
formity of high school textbooks, while
none of the twelve states at the top of
the list had state uniformity of high
school textbooks at the time the report
was compiled. Surely the proponents
erred in offering California's leadership
in education as an argument for state
uniformity.

UNIFORMITY MEANS A STRAIT-JACKET

\\ hile it is quite beside the question
to discuss the use of supplemental books
in the elementary schools, and the al-
leged attempt to substitute supplemental
books published by eastern publishing
houses for the state-printed textbooks,
we cannot refrain from suggesting that
the laws of California give the propo-
nents a ready and efficacious remedy for
any violation of the textbook law. While
the question raised has no direct bearing
on the matter under discussion, we must
solemnly protest against the sweeping
allegation of wrong-doing on the part
of our co-workers in education, the ele-
mentary school teachers of California.
We would respectfully suggest, also,
that this statement concerning the use
of supplemental material in the ele-
mentary schools represents fairly the
attitude the proponents would assume
under a plan of state uniformity for
high schools. They would deny the
right of the high school to use supple-
mental material. They would insist
upon absolute uniformity in the instruc-
tion offered in the high schools of the
state. This argument offered by the
proponents only confirms us in the be-

lief that the proponents are preparing
for the high schools of California a
strait-jacket which will check our ef-
forts to adapt education to the needs of
the students and to make our instruction
practical.

TEXTBOOK PROBLEMS OF HIGH AND ELE-
MENTARY SCHOOLS DIFFER GREATLY

In an effort to discount the substan-
tial arguments against state uniformity
presented by the opponents at Los An-
geles and San Francisco, the proponents
state that the same arguments were used
when books for grammar grades were
first considered. In our first brief we
pointed out clearly and specifically the
difference between the elementary and
high school situations. Since our argu-
ment on this point seems to have es-
caped the attention of the proponents
we take the liberty of offering the fol-
lowing quotation from our original
brief, submitted by Hon. Will C. Wood,
Commissioner of Secondary Schools :

"I wish to empha.size the fact that the prob-
lem of high school textbooks is not analogous
'to the problem of elementary school books.
The elementary school is an old institution
and its course of study and organization are
-Standardized. The course of study for ele-
mentary schools in New York state differs
\ery little from the course of study in our
own state. A sixth grade class in arithmetic,
whether in California or Virginia, studies frac-
tions: a third grade studies addition and sub-
traction. We have had three centuries of
experience in making a course of study for the
elementary schools, so the course is standard-
ized and fixed to a remarkable degree. Since
there is uniformity in grading and in courses
of study in the elementary schools throughout
the state, it is comparatively easy to adopt a
uniform series of textbooks for the elementary
schools. The adoption of such a series in the
grades does not force a radical reorganization
of elementary school work.

"When we consider the public high school
we face a situation utterly different. The
liigh school is a new institution, comparatively
sjieaking. There were only 40 public high
schools in the United States in 1S60. In 1900
there were 6000 and in 1915 there were 15,000.
In 1900 there were only 500,000 pupils enrolled
in the high schools of the United States. In
1915 there were 1.500.000. The growth of the
high school sim-e 1900 has been remarkable.
Before that date, the high school was domi-
nated very largely by the university; it was an
institution whose prime purpose was the prep-
aration of pupils for college. In the last fifteen

years the high school, in response to a popu-
lar demand, lias broken tlie shackles which
bound it to the college. The real life of the
American high school began only a decade or
so ago. The high school is now changing with
remarkable rapidity to meet the demands of
the people. The old courses of study are oelng
imxlified: new courses, especially vocational
courses, are being introduced. So great is the
growth, so rapid are the changes that it Is
absolutely impossilile at this time to give an
adequate definition of a high school.

"I have had opportunity to visit more high
schools in California than any other state offi-
cial. I wish to say that there is the widest
divergence among the high schools of Cali-
fornia. Take the City of Los Angeles for ex-
ample. Visiting the high schools of this city
for even one day would convince you that the
high schools are so different that they cannot
be standardized without working a revolution
in high school work. Moreover, you would
observe such excellent work in class-room, and
shop, and laboratory, and field-work, so ad-
mirably linked up with life, so vital and in-
spiring, that you would realize how harmful it
would be to impose rigid uniformity upon the
high schools of California. It is true that this
city has a certain degree of uniformity in its
text-books, but this uniformity is so flexible
that the growth and efficiency of the schools is
not checked thereby. This vital, energizing
high school work Is possible only because we
have construed the present text-book law lib-
erally. Take the subject of mathematics, for
example. All the high schools of the city offer
the traditional course in algebra, plane geom-
etry, advanced algebra, solid geometry and
plane trigonometry.

The great Polytechnic and Manual Arts High
Schools wanted to offer a course in shop math-
ematics for the boys. I was asked if a text-book
in shop mathematics could be adopted. I found
that the entire course in mathematics was
provided for; that a full series of text-books
in mathematics had been adopted. Could
I permit the adoption of an additional text-
book for those boys in the shops? I turned to
the god of uniformity and lie shook his head.
I turned to the god of common sense and he
nodded. Censure me if you will, but I obeyed
the god of common sense. Again, I was con-
fronted with the following situation: A school
had adopted a complete systein of text-books
in bookkeeping and accounting. A class of
girls ■wanted to study household accounting.
The question arose whether a system of book-
keeping adapted to a wholesale house should
be applied to the household. Could a system
of accounts dealing with pig-iron and steel
rails in ten thousand dollar lots be made to
serve the purposes of young women who in
later life would buy beefsteak in twenty-five
cent cuts, or new shirtwaists at 98 cents? You
may censure me again, but I held that the law
was not made to render education impractical;
that wherever a class was organized for a spe-
cial, practical purpose, another text-book could
be used. A few days ago the principal of a
small high school in this county (Los Angeles),
wrote me stating that the new freshman class
was decidedly weak in English. The school

had adopted a complete series of English
texts, which met the needs of the average
class, but all of these text-books were too
advanced for this particular class. I had to
choose between the principle of uniformity
on the one hand and the good of those pupils
on the other.

"I could stand here all day and recite in-
stances similar to those I have given. In
every instance the choice had to be made be-
tween uniformity on the one hand and prac-
tical education on the other. In deciding the
problem which your honorable committee is
investigating, the choice is between uniform-
ity on the one hand and practical, vital in-
struction on the other. If we adopt a uniform
series, we must adopt text-books that will
contain bare, dry principles that may be ap-
plied anywhere. We shall rob our courses of
the vital elements, for the vital thing in high
school work is the linking up of the studies
with life. Since life is not uniform the 'link-
ing up' cannot be uniform; the text-books
should not be uniform throughout this great
state. The people have been demanding in
loud tones that the high schools shall fit
young people for life. Will the people take
away the link that is being forged? Will they
say to the high school people — 'Make your
schools practical; fit our children for life', —
and at the same time take away the very tools
that are necessary to accomplish this great
work?"

AN ANALYSIS OF THE ANONYMOUS

LETTERS

The proponents have submitted two
letters written by Cahfornia high school
teachers in advocacy of state uniform-
ity. It will be noted, however, that the
censor has deleted the names of the
teachers, who are fearful that publica-
tion of their names would jeopardize
their positions. Waiving discussion of
the alleged Reign of Terror among the
high school teachers of California be-
cause the absurdity of the allegation is
so patent, we shall analyze some of the
statements made by these two people.

First of all, we would have you note
the statement on page lo of the propo-
nents' brief that "the proponents for
uniformity of high school textbooks
have as yet made no campaign among
the legislators nor the school teachers,
hut we are informed that this action is
being taken by the opponents. A nu)n-
her of teachers have without solicita-
tion, given us their opinion that uniform
books could be adopted with benefit to

the schools and the pupils. * * *
Tlic following letter from a luell-knoivn
educator- of the south, ivritteu to the
opponents of unifonnity, expresses, ive
beiiet'c, the viezvs of many of the teach-
ers and principals.'' Then follow the
two letters.

Recalling that these letters were writ-
ten tcithont solicitation, we are at a loss
to understand why the second letter ad-
dressed to the Committee upon Promo-
tion of Uniform Hio^h School Books
should begin as follows: " Replyin;! to
your request for an opinion- on 'Shall
textbooks be uniform for the hitjJi
schools of the state?' I zvould say em-
phatically, yes." As an unsolicited let-
ter, it is indeed remarkable.

The first Unknown Principal has un-
dertaken to compare the cost of a Span-
ish grammar published by a book com-
pany, with a little booklet containing the
Federal and State Constitutions, pub-
lished by the State Printing Office. He
states that he was surprised to find that
the Spanish grammar cost 90c, while
the book in civics cost only 20c. He
forgot to take into account the fact that
the authors of Magna Charta and tb.e
two constitutions made no charge for
their services in compiling' the material
published in the book in civics, while
the author of the Spanish grammar,
realizing that he must eat, had demand-
ed a certain royalty. Moreover, he did
not know that the plates of the book in
civics were made for the Legislative
Counsel Bureau ; that they were paid
for by that bureau ; and that the State
Board of Education sold the book to
the high schools for the actual cost of
printing and binding.

COST OF TEXTBOOKS UNDER PRESENT
SYSTEM

The proponents have laid great stress
upon the cost of high school textbooks
under the present system and have chal-
lenged the estimate of $6.00 for each

pupil as the average annual cost of high
sciiool textbooks in this state. On page
14 of their \ir\vi they give what purports
to l)c a statement of textbook costs in
tile City of .Sacramento. The cost for
textbooks in Sacramento for the first
}ear. according to these figures, is $6.55 ;
for the second year $9.75 ; for the! third
year $13.25 ; and for the fourth year
$13.15. These figures, we have been
assured, are authentic, since they were
secured through a high school pupil.
Assuming that the most reliable figures
could be secured through the ottice of
the jjrincipal of the Sacramento High
Sch(K)l, we asked for and obtained a
statement, showing that the average cost
was $7.21 per pupil, including all the
necessary bookkeeping forms, which are
not textbooks in the ordinary sense. The
original statement of the principal of
.Sacramento High .'school is submitted
to the committee for its consideration.

Realizing the danger of basing a con-
chision on insufficient data, we obtained
statements from seven high school prin-
cipals concerning the cost of high school
textbooks. Each statement is signed by
the princi])al of the school concerned
and all of the originals are submitted
for the consideration of your commit-
tee.

Following is a synopsis of these state-
ments :

Range Avei'age

of Cost Annual Cost

San Diego $5.25 — 8.05 $ 6.78

Santa Ana 6.79

Auburn 4.31

Red Bluff 6.S6

San .lose 4.19—10.01 7.40

Chaff ey Union 3.90

Gilroy 6.00

$42.04
Average $6.01

These figures are based on the theory
tliat each pupil has purchased a new
book in each subject. The principals
estimate that the figures should be re-
duced by 25 per cent at least on account
of the use of second-hand copies. This

would make the average amount ex-
pended annually about $4.50 for each
pupil.

COST OF TEXTBOOKS FURNISHED FREE BY
DISTRICT

In the first brief which we submitf^d
to your committee we pointed out the
desirability of maintaining the present
plan of adoption by the district from a
state list, and suggested that books so
adopted should be purchased by the dis-
trict and furnished free to the pupils.
A\'e called attention to the fact that dis-
tricts could avail themselves of the dis-
count of 20 to 25 per cent which is in-
variably allowed by the publishers when;
books are bought in quantity. \\c
maintain that this is not only the best
arrangement from the educational
standpoint, but that it is more econom-
ical than the plan put forth by the pro-
ponents. Fortunately, we have figures
showing the cost under the plan which
we have proposed.

San Mateo has been supplying text-
books free to the pupils of the high
school, paying for them out of district
funds. The cost for each pupil enrolled
last year was $3.16. Books have been
ordered for next year, and the cost
thereof for each pupil enrolled is $1.72.
It is probable, however, that the aver-
age cost for each pupil enrolled will
amount to approximately $2.50 each
year. We are filing with your commit-
tee the original data supplied by the
principal of San Mateo Union High
School. We submit this plan, which
will secure a saving of approxi-
mately 50 per cent in the cost of
books, as far more worthy of your
recommendation than the plan ofifered
bv the proponents. The plan we sug-
gest will conserve the interests of the
parents and taxpayers ; it will render
high school education free, and will
maintain for the high schools that de-
gree of freedom which is essential if

they arc to do successful work. As
against the plan of the proponents,
which is destructive, educationally
wrong and economically hazardous, we
ofifer you a plan which is constructive,
educationally right and economically
sound.

ESTIMATES THAT DO NOT CHECK WITH
ACTUAL FIGURES

On page 15 of their brief the propo-
nents of state uniformity present figures
purporting to show what the State
Printing Office can save by printing
high school textbooks in the more com-
mon branches. These figures are so
remarkable that we have given theni
more than cursory consideration. The
proponents state that they can save
$7,100 on the publishers" list price of
$11,000 for an edition of 10,000 books
in English. You will note that the esti-
mated cost of this edition is $3,900,
including an allowance of 25 per cent
of the list price for royalty. The royalty
on this edition, based on 25 per cent of
the list price, would amount to $2,750,
leaving only $1,150 for the manufactur-
ing cost. This is just uji cents per
volume. Xow every English book listed
at $1.10 in use in the high schools of
this state contains approximately as
many pages as the Brief Histor)^ of the
United States, published as a state series
text for use in the elementary schools.
The manufacturing cost of this book,
according to the proponents' own fig-
ures (Page 2 of their brief), is 21.1
cents. We would request that the pro-
ponents explain this glaring discrepancy.
Is the manufacturing cost of the Brief
History too great ? Or have the propo-
nents suddenly discovered a labor-sav-
ing process that will cut the manufac-
turing cost of textbooks in two? We
believe that the real explanation is that
the figures given on page 15 are a prod-
uct of the crudest guess-work.

A little further analvsis shows that

they are most unreliable. For every one
of the ten books listed, the proponents
claim a saving of 65 per cent on the list
price. We ask you to compare this
claim with the statement in the pro-
ponents' brief (Page 4) that the saving
through state publication of elementary
school books is 52 per cent. Will the
proponents explain how they will be
able to save 13 per cent more in publish-
ing high school textbooks than they are
now saving in publishing elementary
school textbooks? The utter absurdity
of this claim is apparent when we recall
that the number of copies of each high
school textbook required annually will
be about one-tenth of the number of
each of the state series of elementary
textbooks required.

HAS THE PLAN OF STATE UNIFORMITY IN

CALIFORNIA ELEMENTARY SCHOOLS

BEEN so SUCCESSFUL THAT IT

SHOULD BE EXTENDED TO

HIGH SCHOOLSf

The proponents base their chief argu-
ment for state uniformity of high school
textbooks on the success of state uni-
formity and state publication in the ele-
mentary schools. To show the success
of the plan, they submit certain statistics
which we will accept as a basis for this
discussion. The claim is made that the
State Printing Office is saving the peo-
ple of California $224,893.87 per an-
num. The basis for reckoning the sav-
ing is the publishers' list price. We
wish to point out, however, that in other
states where state uniformity of ele-
mentary school textbooks prevails, the
books are furnished by the publishers
at a discount of 25 per cent on the list
price. (See U. S. Bureau of Education
Bulletin, 191 5, No. 36, page 66.) If
California were to purchase its books
directly from the publishers, it could
secure a discount of 25 per cent on the
publishers' list price. We must, there-
fore, deduct from the amount of saving

claimed by the proponents an amount
computed at 25 per cent of the list
price, or $116,636.62. This reduces the
saving under state publication to $108,-

257-25-

We cannot refrain from pointing out
that previous to Governor Johnson's
term the apparent annual saving on ele-
mentary school books, after deducting
25 per cent as discount, was only
$6,797.11. These figures are computed
on the basis of data supplied by the pro-
ponents in their brief, so they cannot
be questioned. Moreover these figures
were made when the cost of manufac-
ture was much less than it is today.
In the circumstances, we cannot
concede that state publication of
elementary school textbooks was suc-
cessful previous to Governor John-
son's term, and we cannot concede that
it wall be successful in the future unless
we assume that the improvement in the
State Printing Office under Governor
Johnson's administration is permanent.
We submit that state uniformity and
state publication of elementary school
books has not been so markedly suc-
cessful as to justify the extension of
the principle of state publication to
high school textbooks.

RATIO OF ROYALTY TO TOTAL COST

On page 15 of the brief filed by the
proponents there appears a list of the
high school books which they claim can
be printed at the State Printing Office
at a saving to the state. A careful study
of the table and of data we have col-
lected will show that these books will
cost considerably more under state pub-
lication than under our suggested plan.

On page 9 of the proponents' brief
you will find this statement: ''The roy-
alty aiiiouiits oil cloiiicntary textbooks
fii:!;iired as follows: 15 per cent on re-
tail sales price in other states, 33 per
cent on our total cost, and 60 per cent
on our manufacturing cost.''

Royalty

Primer .' $.048

First Reader 048

Second Reader 0525

Third Reader 06

Fourth Reader 09

Fifth Reader 09

Speller One 025

Speller Two 03

First Arithmetic .0525

Advanced Arithmetic 09

English Lessons 1 0675

English Lessons II 09

Introductory History 15

Brief History 15

Introductory Geography 09

Advanced Geography 15

Primer of Hygiene 06

•Civics 125

Per Cent of

Number

Royalty on

Distributed

Mfg. Cost

Total Cost

1915-16

$.083

$.133

36%

17,169

.078

.126

38%

15.096

.093

.1455

36%

17,364

.113

.173

347o

12,485

.128

.218

41%

11,069

.129

.219

417o

10,691

.103

.128

19%

31,785

.101

.131

23%

20,446

.104

.1565

33%

29,225

.123

.213

42%

23,926

.139

.2065

32 7o

16,097

.146

.236

38%

16,878

.142

.292

51%

10,848

.211

.361

il%

16,796

.203

.293

31%

21,254

.349

.499

30%

23,910

.106

.166

35%

11,985

.168

.293

43%

9,722

Average

35%,

The table above shows the per
•cent of royalty on the total cost of each
book and the number of each book dis-
tributed in 191 5-16:

\\ e would have you note especially
that the total cost in most instances is
three times the royalty cost, as the pro-
ponents have stated. The average is
about 35 per cent. We are justified in
assuming, therefore, that the ratio of
one-third between royalty and total cost
is a reasonably constant one. We shall
apply this ratio in a later paragraph in
estimating the cost of those high school
textbooks which the proponents purpose
publishing.

PROBABLE ROYALTY COST

In our first brief we stated that it
would probably be impossible for the
state to secure the lease of plates to be
used in publishing high school text-
books. The proponents suggested
(Page 9 of their brief) that informa-
tion on this point be secured. Our cor-
respondence with publishers confirms
our belief. Even assuming that plates
can be leased, we pointed out in our

former statement that the royalty would
be exorbitant on account of the small
number of each book needed to meet
California demands. The proponents
have admitted that the royalty on plates
for high school books will be higher
than the royalty on elementary school
books. (See page 15 of their brief.)
They estimate royalty on high school
books at 25 per cent, although the state
is paying only 15 per cent royalty on
elementary school books. The experi-
ence of Kansas in attempting to lease
plates for high school books warrants
the conclusion that if any bids for ac-
ceptable books are received, the royalty
will be at least 30 per cent of the list
price. (See U. S. Bureau of Educa-
tion Bulletin, 191 5, No. 36, page 66.)
Assuming, however, that the royalty
charge will be 30 per cent, and the total
cost under state publication will be
three times the royalty, as the propo-
nents have stated in their brief (Page
9), the cost of an edition of 10,000
copies of each of the books mentioned
on page 15 of the proponents' brief
would be as follows :

(?>)

Royalty

Knglish 33

Civics 371^

Science 30

Economics 30

Algebra (Elem.) 30

Algebra (Adv.) -12

Geometry (Plane) 24

Geometry (Solid) 22>,i

Bookkeeping 42

Spanish Grammar <>'iV2

(2)

Whol

e.salc Price

Total Cost

rice for 10,000

Total Cost

r Copy

for 10,000

Wholesale,

per Copy

from

Piildi.slier

State Mfg.

om Publislicr

.99

.88

$9,900

$8,800

1.121^

1.00

11,250

10.000

.90

.80

9,000

? 000

.10

.80

9,000

,8,000

.90

.80

9,000

8,000

1.26

1.12

12.600

11,200

.72

.64

7.200

6,400

.67%

.60

6,750

6,000

1.26

1.12

12.600

11,200

1.121/2

'otal .

1.00

11,250

10,000

. . ..$98,. ^50

$87,600

LOSS OF THOUSANDS OF DOLL.\RS UNDF.R
STATE PUBLICATION

It will be note<i that the loss sustained
hy the state on an edition of io,ooo
copies of each book would be $10,950.
To this must be added the cost of mak-
ing the adoptions. The experience of
the State Board of Education in adopt-
ing books for the elementary schools
proves that the cost of adopting' books
is no small item. The commissioners
and expert readers must carefully in-
vestigate the books submitted and the
Board must sit to hear arguments by
the publishers' agents on the merits of
the books. Under the present system
the public does not incur any expense
for adopting high school books.

The cost of adopting one elementary
textbook is approximately as follows :

COST OF ADOPTING BOOK

Per diem of 7 members of State Board of
Education, 2 days @ $15 each $210.00

Expenses of 7 members of State Board

of Education, 2 days @ $5 each 70.00

30 days' tinie of Commissioner of Sec-
ondary Schools, investigating book,
preparing brief, etc 333.00

5 expert readers to investigate lK>ok,

(fv $25 12.'). 00

Clerical assistance in handling extra

work 25.00

Total cost per book $763.00

For the ten books included in the
tal)le we must therefore add $7,630 to
the cost, making the total loss to the
state through state publication $18,580.
Taking the publishers' wholesale price
as a basis, we find that the cost of these
ten books under state publication will

l)e at least 21 per cent greater. If state
publication of other books requn-mg
smaller editions were undertaken, the
loss to tlie state would be at least $50,-
000 annually. This is assuming that a
state printed book would be equally well
printed and bound and the materials
used of quality such that it would last
as long as the one purchased in open
market. I'Vom an economic standpoint,
therefore, state publication of high
school textbooks is out of the question.

SMALL ENROLLMENT, LONG USE,
GREAT LOSS

It would be unjust to continue the
use of any given book until an edition
of 25,000 was exhausted, as this repre-
sents the minimum number which the
state could successfully print. How
long would such an edition last? A
few^ examples will be sufficient:

Third year Latin texts would last 26
years; fourth }ear Latin, ^2 years;
German texts, 10 to 11 years; English
History, 11 years; economics, 18 years;
agritnilture, ;},ji, years; household chem-
i"'try^3 years. Shall we mortgage the
interests of the boys and girls of the
next generation and be compelled to
teach that which is not true?

(1) The royalty is computed at 30 per cent
(il the ]>ublishers' list price.

(2) To find the total cost per copy, multiply
the royalty by 3. (The proponents in their
brief (Page i) state that the royalty on Ele-
mentary school books amounts to 33 per cent
of the total cost.)

(3) Found by deducting 20 per cent from
the publishers' li.«t price.

EOrCATIONAL PHASES OF
STATE UNIFORMITY

UNITY VS. UNIFORMITY

We are interested in maintaining such
freedom in the matter of textbooks as
shall make it possible to fit them fairly
to the diverse needs of classes formed
for various purposes and coming from
varying surroundings. We do not
want growing subjects to be crystal-
lized about any one man's ideas. Wq
do not want the study of any of the
great fields of knowledge to be limited
for an entire state to what is given in
one textbook. We do not want to
place a premium upon the study of tra-
ditional subjects and ancient knowledge
by furnishing such textbooks free, as
suggested by the proponents on page
14 of their brief, while the new and
vital stufif of the day is sidetracked be-
cause the pupil must pay to get it. We
do not want the marvelous advantages
of UXITY muddled in anybody's mind
with the deadening effects of slavery to
UNIFORMITY. Finally, we recognize
the necessity of careful scrutiny of
financial methods involved in the dif-
ferent ways of furnishing textbooks.
We recognize the great value of some
central body to guard against careless
expenditures for textbooks and evident
mistakes as to the reliability QX^^dapt-
ability of such books. W^e -would
strongly deprecate any change that
would replace the benevolent power of
such a central body, subject to reason
and to changing conditions, with the
technical restrictions of complicated
laws and the embalming effects of large
financial investments and unnecessary
financial ventures on the part of the
State.

TEACHERS FIRST ADVOCATED FREE
TEXTBOOKS

Let it be clearly understood that the
educational people of the State are and
have been generally favorable to free
textbooks, and that the proposition,
backed by careful investigation of the
experience elsewhere, that textbooks
should be free, was made by them long
before any other bodies had even dis-
cussed the matter.

The State Association in 1902 adopt-
ed the report of a committee favoring
free textbooks, and later the Southern
California Association adopted a simi-
lar report. It thus appears that the
teachers of the State, whenever they
have made any investigation of the
matter, have reported favorably to free
textbooks, and largely on financial
grounds. But there has never been any
report from any State teachers' body
favoring uniform textbooks for high
schools.

None of the objections to uniformity
apply of necessity to free books fur-
nished by the district, either with or
without State aid. Local adoptions can
have thrown about them all necessary
care and oversight. Limitations can be
placed on expenditures, so that inter-
ests of economy can be conserved and
still educational conditions and aims be
fully met. The State Board of Edu-
cation can adequately guard all inter-
ests concerned. Free books have their
objections, but these objections apply
to them if uniform just the same. They
are largely objections of sanitation and
administration.

It is worth while to note that we may
compel districts to provide textbooks
free within a given period, give State
aid if we think best so to do, and still
be free to retire from this position at
any time we think best to do so, or
provide for uniformity or State print-
ing if we then think it wise, without

financial loss to the State in making' the
change. On the other hand, the under-
taking of production of these books by
the State means not only uniformity,
but long continued use of the same
textbook, good or bad, and an invest-
ment by the State that renders any
modification of our course in the light
of experience, our own or that of oth-
ers, most difficult.

THE TEXTBOOK A BODY OF KNOWLEDGE

The textbook is primarily an accepted
body of knowledge. Time was when
we were able to include between the
covers of a textbook pretty much all
the accepted body of knowledge in any
field. Today, such a body of knowl-
edge in most fields would fill libraries.
Different textbooks present different
portions of this body of knowledge ac-
cording as people and schools differ in
their estimate of what is most funda-
mental. Even teachers differ frequent-
ly as to what they can give with greatest
effect. \\'hile any good teacher may be
able to present with average success
any portion of his own field, a teacher
is frequently found who can do work
of remarkable effectiveness in some
portion of the field where he has ex-
ceptional education, experience, or na-
tive talent.

Thus it is quite within the realm of
reason that at times it may be in the
interest of efficiency to make this work
possible. \\'hether it is financially ex-
pedient is then the question for some
responsible authority to decide. Where
the young people in different parts of a
state have been educated in a given
field — say civics — in different text-
books, the equilibrium of the state as
regards this field is maintained after
these young people leave school and be-
come an influential part of the State by
the attrition of these various ideas and
ideals upon one another. In other

words, the larger education is the edu-
cation the young people of the state
give each other as they bring into the
contact of real life their various views
obtained in school life. It is fortunate
for the educational breadth of any state
if its school views have not all been
obtained from the same book.

THE TEXTBOOK A MODE OF APPROACH

A textbook is not only an organ-
ized body of knowledge ; it is also a
mode of approach. As long as schools
were for "born scholars" only, and so-
called culture was the sole aim of the
school, Greek roots and science were oo
equal footing. Today all are going to
school and are demanding that school
w'ork shall appear to them rational and
worth while attempting. That it may
do this, it must find its roots in the real
life the pupil knows and must show it-
self in some degree applicable to the so-
lution of the life problems he antici-
pates meeting. The demand is that
education shall be practical, growing
out of the surroundings of the pupil
and helpful to him in living a larger
and more effective life than he could
otherwise do. The selection of a text-
book is one important factor. It is the
prescription.

The local physician may not always
be able to make the wisest prescription,
but it is very certain that a committee
at a central point should not be expected
to make the wisest diagnosis of the local
needs. Co-operating in a reasonable
way, a central committee could do the
work of an expert consulting physician.
The demand for more practical educa-
tion, applicable to life and derived from
real surrounding conditions, has given
rise to a flood of new textbooks meet-
ing this need with greater or less suc-
cess. But those books adapted to one
purpose, or to one set of conditions, are
thereby less adapted to some other pur-
pose or set of conditions. Such efforts

are the hope of popular education. Sti-
fle them and we are tied to the past.
The body of teachers will naturally
teach largely as they have been taught,
but the cutting edge of progress for
them and for the schools is the new
textbook that links some field of knowl-
edge up with life in a new and more
effective way.

TEXTBOOKS AS TOOLS

The textbook is not only a body of
knowledge and mode of approach, but
also a tool in the hands of the teacher.
A teacher may, to be sure, teach any
subject of which he is a thorough mas-
ter, without a textbook, but only as he
practically makes a textbook himself.
Teachers of excellent abilities in the
class room may be wholly unable to or-
ganize the equivalent of a good text-
book even if they have the time, and
the ordinary textbook on the market re-
quires years for its completion. An
occasional experiment without a text-
book may be advisable for temporary
reasons, but is not usually compatible
with greatest efficiency.

How the conception of the textbook
as a tool may call for a difference in
textbooks in different schools is appar-
ent if the kind of textbook in civil gov-
ernment for instance, reqviired by a
teacher of a class in a large city high
school be compared with that required
by the teacher in a small rural high
school, who frequently finds that_in ad-
dition to other subjects he must teach
the civil government. The former, with
large reference libraries at hand, both
in school and city, with time to organ-
ize the work and take his class to study
first hand the details of city and county
government, wants a mere outline for
the textbook and prefers that his pupils
should not be prejudiced by arguments
and conclusions drawn by an authority
already adopted and accepted. The

rural high school teacher on the other
hand, nuist have a book that will largely
carry the subject, to which he can
scarce give the time for recitation. A
system that would permanently and
certainly prohibit principals from hav-
ing any possible voice in the selection
of the tools their teachers must use,
would doubtless be held in the same
regard by them, as a system by a super-
intendent of a manufactory that would
permanently debar him from havmg
any voice or power of recommendation
of machines or tools that he sees will
make for efficiency.

NARROWING INFLUENCE OF THE SINGLE
TEXT

It is as preposterous to demand that
all high school teachers use the same
text as it would be to demand that all
carpenters use a Simonds or a Disston
saw. Is there not the same reason for
prescribing uniform apparatus in all the
laboratory sciences ; uniform tools in
the industrial art courses ; uniform
equipment in all the commercial depart-
ments, and indeed, uniform articles in
all general school supplies ?

The courses and the textbooks must
not only be chosen to suit the varying
needs of the pupils and of the communi-
ties in which they live, and be adapted
to the individuality of the teacher, if
the highest efficiency is to be attained,
but these textbooks must be selected in
relation to the school equipment. This
is true in all departments, particularly
in the cultural subjects of History,
English, Economics, to say nothing of
the laboratory courses, whether in the
sciences, commercial work or other
branches. How could a small high
school, with few, if any books, use suc-
cessfully a history text calling for a
great deal of supplementary reading?
Should the Los Angeles High School,
on the other hand, with 8100 volumes in

its own lilirary, be compelled to use a
text without such a rich fund of sup-
plementary materials? There would be
a gross injustice in comiielling all
schools to follow the same course and
to use the same laboratory texts or man-
uals in the sciences. The small high
school would find it utterly impossible
to purchase the apparatus and supplies
required by the science courses as given
in the Oakland Technical High School.
It would be a greater injustice to limit
the efficiency of the larger high schools
by expecting them to conform to the
same course requirements as some of
the mcagerly equipped schools of the
state.

There are numerous subjects that are
being newly taught in high schools such
as economics — a study of the principles
underlying the business world — in
which crystallization by the long-time
adoption of a single textbook would
chloroform the subject. General Sci-
ence is everywhere coming in as neces-
sary, it being only ordinary good sense
to believe that young people should be
made acquainted with the science of
common things in this, an age of sci-
ence. But the ventures at textbook
making in this field have thus far been
wholly inadequate. Even so formal a
subject as algebra has recently receiv-
ed some lively and practical contribu-
tions to its list of textbooks. A most
excellent textbook has just appeared,
in which all algebraic formulae are de-
rived from such ordinary surroundings
as the sewing machine, the turning
lathe, the traveling crane, and the more
common machines of the shop, so that
the subject is not a mere juggling of
symbols. It will probably be the mak-
ing of boys and girls where it is used
by a teacher who understands and ap-
preciates it, because it makes the best
of algebra real and discards what can-
not be made real. Its successful intro-

duction, however, can hardly come by
fiat. The teacher must recognize in it
a needed tool. Science preparatory for
engineering is not the same as science
for lionie economics courses. Science
adapted to ncetls of girls is not necessa-
rily the science needed by the boys.
The agricultural and horticultural con-
ditions in dififerent parts of the state
demand treatment in textbooks dififer-
ing the one from the other.

Instances requiring difi:erence of
treatment impossible in case of state-
wide adoption might be multiplied at
length. "Probably no one of all the
thousands of high schools", say Strayer
and Thorndike in their book on Educa-
tional Administration, page 175, "is do-
ing the best possible thing for educa-
tion, but most of them would do worse
than they now do if they all did do the
very best possible thing for any one
of them."

It has been asked if there are not
subjects in which there is practically
no change. It has been suggested, for
instance, that the Greek Epics of Ho-
mer are not liable to any violent
changes in the general disturbances of
modern life; that the Lady of the Lake
is the same as when written ; and so
with the classic literatures of other
languages. Would it not be advisable,
we are asked, to mak^e these uniform as
to edition and perhaps print them at
our state printing office even though
the pupil must purchase his other text-
books? If such text as "Lady of the
Lake" for instance, were made uni-
form and free, other literature, no mat-
ter how much more practical or well
adapted to tlie purpose in hand, requir-
ing a textbook to be bought would be
sidetracked. \\'e should at once see the
tendency to give only those subjects in
which the book is free. Spanish would
give place to Latin. Similar examples

in other fields of educational endeavor
come readily to mind.

UNIFOR-MITV A DAXGEROUS ADVENTURE

In our opinion, your Committee
would do well to consider carefully the
likelihood of the State being able to
command the best of the textbooks al-
ready written or to obtain for State use
with any certainty the best of our local
product. Your Committee should also
determine whether really successful
textbooks can be written to order.

\\'e believe that it is the business of
the State, where possible, to protect its
citizens against egregious and costly
errors of judgment. Fortunately, in
this case, it is not necessary to throttle
initiative or hamper progress to do it.
There is ample experience both outside
and inside the State of California to
draw upon. Many States and hun-
dreds of cities have tried free text-
books. Their experience covers many
years. There is no necessity for mak-
ing a'.n- excursion into the sea of un-
tried policies. W'e have a State Board
of Education that was created to bring
to us the light of the world's experi-

ence and keep in full touch with the
real educational situation in California.
They can keep the State from foolish
and dangerous adventures, but only as
the .State through its organization con-
sults them and listens to them. We are
but a temporary committee of a \olun-
tary organization. Without doubt we
do, in this matter, represent the teach-
ers of the State. The State Board of
Education in a permanent and authori-
tative way represents not the teachers
only, but the entire educational inter-
ests of this State. To the State Board
of Education we refer your committee
for any factors on either side of the
question that we have overlooked or
through unwitting prejudice have failed
to state fairly.

Finally, we submit that a unified edu-
cational system does not involve uni-
formity. Unity of efifort implies ra-
tional co-operation among factors
differing as widely as the conditions
that surround them. Uniformity means
mechanical duplication, displaces rea-
son, and stops progress.

Unity is the law of life. Uniformity
is the rule of death.

SELECTED BIBLIOGRAPHY

ON STATE UNIFORMITY AND STATE PUBLICATION

OF HIGH SCHOOL TEXTBOOKS*

California Council of Education. Free Textbooks, Report. Sierra Educa-
tional Nc7us, 8:333-38, May, 1912.

California Textbook System, The. L. E. Armstrong, Sierra Educational
NezK's, 8:7-16; 7-16, Oct. and Nov., 1911.

Cubberley, Ellwood p.. Textbooks. In Cyclopedia of Education, ed. by
P. Monroe. Vol. 5. New York, The Macmillan Company, 1913, p. 756-78.

Dutton, Samuel T., and Snedden, David. Free Textbooks. In their
Administration of Public Education in the United States. Xew York,
The Macmillan Company, 1908, p. 216-23. (Rev. ed., 1912.)

Georgia. General Assembly. Schoolbook Investigating Conunittee. Report.
(Atlanta), 1914, 24 p. 8°.

Jenks, Jeremiah W., Schoolbook Legislation (in Indiana). In his Citizen-
ship and the Schools. New York, H. Holt and Company, 1906, p. 207-64.
Reprint from Political Science Quarterly, March, 1891.

Klingman, O. E. Textbook Legislation in Iowa. Iowa City, State Histor-
ical Society of Iowa, 191 5. 65 p. 4°.

Reprinted from lozva Journal of History and Politics, 13:53-113, January,
1915-

New York (State) Department of Efficiency and Economy. Report of
investigation of the cost of providing free textbooks in the public schools
of the State of New York, 1914. Albany, J. B. Lyon Company, 191 5,
445 P- 8°.

WiNSHip, A. E. Textbook — Educational, Commercial and Political.
Journal of Education, 81-285-88, March 18, 191 5.

An address before the Department of Superintendence, -Cincinnati, Febru-
ary 2^, 1915.

Also in American School, i :69-7i, March, 1915.

*For more extended bibliography see Bulletin Xo. 36, 1915, United Statea Bureau of
Education, p. 66.

"The high school people of the state have no fight against the
principle of free textbooks. . . . Uniformity in high school texts
would prove absolutely detrimental to the best interests of the future
citizenship of this state. Unification in many things is desirable.
Uniformity is deadening. Pupils differ in their capacity and adapt-
ability. Schools differ in the length of their terms. Teachers differ in
training and temperament. Localities differ widely in their environ-
ment and needs. Schools differ as regards the courses offered. The
tremendous progress made by the high schools of California has been
in no small degree due to the fact that teachers and schools have been
allowed freedom in the choice of textbooks. Indeed, wherever uni-
formity has been imposed upon the school in the matter of textbooks,
the flexibility of the law providing for supplementary books has been
the saving grace of the system. Uniformity, let us hope, will not be
imposed upon us."— In Sierra Educational News for January, 1916,
page 11.

UNIVERSITY OF CALIFORNIA LIBRARY

THIS BOOK IS DUE ON THE LAST DATE
STAMPED BELOW

AN INITIAL FINE OF 25 CENTS

WILL BE ASSESSED FOR FAILURE TO RETURN
THIS BOOK ON THE DATE DUE. THE PENALTY
WILL INCREASE TO 50 CENTS ON THE FOURTH
DAY AND TO $1.00 ON THE SEVENTH DAY
OVERDUE.

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