9 ^ 5 ^ TEACHERS' SALARIES AND SALARY SCHEDULES IN THE UNITED STATES, 1918-19 Prepared for the Commission on the Emergenqr in Education of the NATIONAL EDUCATION ASSOCIATION E. S. EVENDEN, Ph. D. Associate in Educational Administration, Teachers' College, Columbia University, New York City v***.- ■: i -r ^ --^<'- >■ JUL. IS tj\^M^ Kju luE lasi uuic aiuujpcu uciuw JUL 1 8 1829 AUGl JIIN3 mf' F'orm L-9-15m-8,' Southern Branch of the University of California Los Angeles Form L I LB E^5 TEACHERS' SALARIES AND SALARY SCHEDULES IN THE UNITED STATES, 1918-19 Prepared for the Commission on the Emergency in Education of the NATIONAL EDUCATION ASSOCIATION E. S. EVENDEN, Ph. D. Associate in Educational Administration, Teachers College, Columbia University, New York City COMMISSION SERIES NO. 6 PRICE ?i.5o WASHINGTON The National Education Association 1919 87393 UNIVERSITY of CALIFORNIA AT LOS ANGELES LIBRARY >:& E,3^ CONTENTS I NTRODUCTION 1 Chapter I. The Salary Situation in the United States as Shown by Re- ports from 423 City Superintendents 7 Part I of Questionnaire to superintendents giving data on distributions of salaries 11 Part II of Questionnaire to superintendents giving data on salary schedules, current standards, and cost of living.. 38 Chapter II. The Salary Situation in the United States as Shown by Re- ports from 15,000 Individual Teachers 66 Part I. The situation as shown by medians 70 Part II. The situation as shown by coefficients of cor- relation 77 Chapter III. The Salary Situation in the United States as Shown by Statements^ from State Superintendents 87 Chapter IV. Teaching and the Economic Situation 89 (a) Teachers' salaries and the cost of living 99 (b) Teachers' salaries compared with those of other occupations 104 Chapter V. Salary Schedules 119 Comparative situation 120 Typical salary schedules in opeartion 123 Elements to be considered in making salary schedules 131 Suggested salary schedule 148 Suggestions for administering a salary schedule 148 Teachers' salaries and public interest 149 Appendix I. List of Cities furnishing data for Chapter 1 154 " II. List of Cities furnishing data for Chapter II 159 " III. Method of computing correlations used in Chapter II 164 Bibliography ^"' FOREWORD The Commission on the Emergency in Education of the National Education Association has, from the beginning of its work, recognized the necessity of informing the pubHc with respect to teacher's salaries. In order to supplement the work which had already been done by the Committee on Teachers' Salaries, Tenure, and Pensions, the Com- mission sent out during February of 1919 a questionnaire to super- intendents of schools thruout the country. The data thus collected were turned over to Dr. E. S. Evenden of Teachers College, Columbia ' University, who, under the direction of the Chairman of the Commis- ^ sion and of Professor N. L. Engelhardt, prepared the report which is ^ submitted herewith. The National Education Association and the teachers of the >4. country are indebted to superintendents who cooperated with the Com- ^^ mission in furnishing the data, to a group of graduate students in Teachers College, Columbia University, who contributed valuable assistance in the tabulation of replies, without cost to the association, but most of all to Dr. Evenden, who gave a large part of his time over ^ a period of eight months in the preparation of this report. Super- i intendents of schools, teachers, and school board members will find ^in the study a most careful analysis of the salary problem, together N-/ with proposals for salary schedules. It is only as the recommendations made are carried out by local boards of education that we may hope to provide well trained teachers for all American boys and girls. George D. Straver, Chai'niiaii, Cniiniiissioit on flic Emergency in Education. INTRODUCTION Some Facts Showing That There is a "National Emergency in Education" 1. The average number of years (of 200 days) attendance at public ^chools for each individual, as indicated by the school statistics for 1916/ was only 5.96, or less than the completion of the sixth grade for an average education for the citizens of the greatest democracy in the world. 2. The total high school enrolment for 1916 was only 8^ per cent of the enrolment of the elementary schools. Assuming that the schools should hold students at least thru the high school, and that the high school course extends over 4 years and the elementary over 8, we might expect to find the high school enrolment nearly 50 per cent of the enrolment in the elementary schools, making a slight allowance for death rate. Instead, we find 8^4 per cent, or only one out of every six of those who should be in attendance. The "holding power" of the school is a mythical quantity. Its "dropping power," however, is not only a reality but so effective that of 100 children starting the first grade together, jo are dropt before they finish the sixth grade, jo of the remaining 70 are dropt before completing the eighth grade ; of the ifo graduating from the eighth grade, 50 more are dropt before gradua- tion from high school. About eight more are dropt before college and about one of the two remaining educational pilgrims completes his college course.^ 3. There are more than 5.000,000 persons in the United States over ten years of age (about one in every twenty) who can neither read nor write. ^ If we consider as illiterate all who are not able to read a news- paper and write a simple letter, the above figures would be increast four times, or to one person in five.* There are many thousands of children in the United States attending schools in which not a word of English is spoken during the entire day. 4. Of the 3.208.446 men examined by the Draft Boards of the United States, 949.419 were declared physically unfit for general military service.' Considering that these were men in the prime of life, and assuming that even the same proportion would hold for younger and older men and for women, it would indicate that there are 30,000,000 persons in the United States who are to a greater or less degree physically inefficient. 1 Report of Commissioner of Education — Volume II — 1917 — p. 24. - Educational Administration — Strayer and Thorndike — Sec. 2 — Macmillan t'o. ^ N. E. A. Bulletin — April, 1919 — p. 13 ' Based on findings of the Psychological Division of tlie Surgeoii-Onrr.-.i's Oflicr the examination of 1,552,256 men. '■Report of Provost Marshal (ieneral — 1918 — p. 153. N.1 TIONAL ED UCA TION ASSOCIA TION 5. About 4,000,000 children are taught by teachers less than 21 years of age, with little or no high school training, with no professional preparation for their work, and who are, in a great majority of cases, products of the same schools in which they teach. ^ 6. The normal schools and teacher-training institutions of the country found their attendance cut from 5 to 46 per cent, during the two years of the war, thus further decreasing the inadequate source of supply.- 7. Thousands of children were urged to leave school and enter some shop or war work industry in order that they might more directly "serve their country," and attendance laws were more laxly enforced in order to make this possible. To meet the above conditions educators were able to offer pros- pective teaching recruits an opportunity to serve, to do work which is enervating, with many outside demands and long irregular hours, at an average yearly salary of $630.64'' — less than $55 a month. Early in 1917, when the nation was giving its united effort to win- ning the war, the shortcomings as well as the unrealized possibilities of the schools were so vividly seen by men and women prominent in education that the situation was referred to as "The Emergency in Education." When the matter was brought before the National Edu- cation Association and the Department of Superintendence, the "Com- mission on the Emergency in Education and the Program for Read- justment During and After the War" was formed. This Commission realized the imminence of the danger and inaugurated a campaign, more inclusive than any ever undertaken in this country along educa- tional lines, to study the situation, enlist the profession and inform the people. It was evident from the discussions of the first meeting that the schools of the covmtry had failed to meet entirely their educational responsibilities in the past ; that they had allowed, and, in some cases, caused serious inequalities to exist ; and that they were not making the adjustments necessary to meet either the needs of war-time or the reconstruction period to follow. Five problems imprest the Commis- sion as being national in their scope and in need of immediate action. These were (i) the removal of illiteracy, (2) the Americanization of foreigners, (3) the equalization of educational opportunities, (4) the promotion of physical and health education and recreation and (5) the preparation of teachers, particularly for the rural schools. Committees were appointed and investigations immediately started. Early in these investigations it was found that sooner or later nearly * Based on estimates given in N. E. A. National Program for Education — Commission Series ,^ — p. 94. - Brown, J. C, "State Normal Schools and the War" — School and .Society, Volume 7 — p. 695. " From Estimates of Commissioner of Education — N. E. A. Bulletin for April, 1919 — p. 14. TEACHERS' SALARIES AND SALARY SCHEDULES 3 all of the problems involved the ccoiwiiiic aspects of teaching. As a consequence one of the three big National Education Association prob- lems for 1919 was a campaign for better salaries thruout the United States. The first phase of this was the disclosure of the alarming shortage of teachers existing in all sections of the country. Even in the larger cities where salaries were higher than elsewhere and living conditions more congenial, the school boards could not begin to fill the vacancies caused by the inroads of various war activities. In New York City, as an example, the shortage was so great that in February. 1919, in 278 of the schools of the city, 19,901 registered pupils report- ing at schools received absolutely no instruction.' Superintendents and principals put forth every effort to relieve the situation. Classes were doubled, kindergarten teachers were used in the upper grades, but thou- sands of children were daily turned from the schools to the streets. Every effort was made to increase the supply, particularly of substitute teachers, but there were few applicants for examination, and fewer students enrolled in the city training schools for teachers. Demobiliza- tion camps were canvast for teaching recruits, but because there were relatively few with the necessary preparation, and because there is a rapidly growing feeling that teaching is not a man's task, these can- vassings brought almost no returns. The New York City situation was practically duplicated in every large industrial city where war industries caused an increase in urban concentration of population. In the rural districts where the induce- ments to enter or stay in teaching work are vastly fewer than in the cities, the situation was proportionately worse. Whole sections of States were unable to open the rural schools in the poorly paid and less favorably situated districts. One county in Pennsylvania reported fifty- three of its rural schools without teachers. According to an estimate of the United States Commissioner of Education, the nation was more than 50.000 teachers short of the number required to provide schooling for its children — the schooling" which should be guaranteed these children if we are to be a democracy in more than name only. This shortage, which was more than tzvice the total number of graduates of all the public and private normal schools in the entire country during the preceding" year, existed after over 120,000 inexpe- rienst, untrained, immature or "erstwhile" teachers had been intro- duced into the schools in a valiant, tho often misguided effort to open ihe schools. This eft'ort was misguided in that many of the schools would have been better unopened than to have the teachers they were compelled to take. The real shortage, then, may fairly be estimated at nearly 170,000 teachers. ' The Glohc amd l'onimeici:il Advertiser — \\"ed.. Fcbniaiv 19. igig — ArticU Metcalfe. XJTIOXAL EOrCATIOX .iSSOCIATION This exodus from a time-honored and socially respected form of public service into the fields of stenography, bookkeeping, card-filing, indexing, time-keeping, salesmanship, clerking and farm work, to say nothing of the fields of work where the incentive of more direct war service was added, such as nursing, reconstruction work, decoding messages, motor driving, etc., really threatened the efficiency if not the existence of our system of public education. It was by no means entirely caused, as some have said, by an intense desire on the part of patriotic teachers to be of service in helping to win the war, nor by a feeling that one was rendering a finer service by taking the place of a man in the local grocery store than by teaching forty young citizens at school. It was caused, rather by the ability of these teachers to earn from 25 per cent to 100 per cent more salary in these other occupations. The various governmental departments were among the heaviest bid- ders for these teachers. Thousands of teachers left their positions and iheir annual salaries of from $500 to $600, to work for the govern- ment for $1,100 to $1,500. The following advertisement from the March, 1919, number of a State educational journal shows that this is still a factor in competition : TEACHERS— GET U. S. GOVERNMENT JOBS All teachers, both men and women, should try the Govern- ment examinations soon to be held thruout the entire country. Reconstruction v/ork necessitates thousands of appointments. The positions pay from $1,100 to $1,500; have short hours, annual vacations, and are permanent. Those interested should write immediately to for large descriptive book, showing the positions open and giving many sample examination questions, which will be sent free of charge. Unfortimately for oiu- schools the teachers who left because of these inducements have not returned and will not return in any large numbers. They have discovered that there are many opportunities open to women in other fields — fields in which they can earn a much more comfortable living, have easier hours, less fatiguing work, and more freedom. These causes, then — strictly war-caused in their first appearance — are remaining in operation, and will do so until the public school service can be made more attractive financially than the other lines of work. This cannot be done until we have a universal realiza- tion of the vital part played by the schools in the social and political life of any country, and particularly in the country that the world looks to as exemplifying on the largest scale the ideals of true democracy. As a people, we have been slow to assign to the school a leading part in our drama of socialization. When, however, it became neces- sar\- to secure a national conviction on any topic, when it seemed 'lEACHERS' SALARIES ASD SALARY SCHEDULES advisable to start the whole country on a policy of thrift, or when some form of service was needed by Food Administration, Red Cross or other organization, there was an immediate appeal to the school as the means of reaching the greatest number in the most thoro way. Early in our participation in the war there were 2jo listed agencies^ directly or indirectly using the schools to further their causes, if this seems wise and can be done in the stress of war, it could and should be done in a regulated way during times of peace. Our frantic appeal to the schools to help in this emergency was an admission that they, as a force for shaping public opinion, had been neglected in the past. Shall we now again neglect this force which proved so helpful in securing national co-operation and in shaping public ideals? Are there not problems before us as a nation, which must be met largely by the aid of the schools ? There has been no armistice declared, and we hope there never will be a treaty signed between education and the forces which strive against mutual understanding, socialization and progress — in a word, against civilization. The problems of reconstruction, world recon- struction, face the schools and their product of the next few years. Can we trust the execution of a work so important to our numerically depleted, poorly prepared, and financially underpaid teaching force, or to the recruits who may enter under conditions which norw exist ? For reasons which will be shown, the point of immediate attack for the improvement of present educational conditions is the financial one. No adjustment of the salary situation can be either satisfactor}^ or lasting until it is based upon sound economic principles. Careful studies of the whole situation in its economic, sociological and educa- tional aspects must be made, and salary schedules must be based upon the findings of such studies. Salary adjustments can no longer be based on pity, condescension, or public charity in the form of tempo- rary bonuses, nor can they be made by "flat increases" either in dollars or per cents. The National Education Association has conducted such a study this year, in the hope that its findings may be profitable, not only to the teachers concerned, but to the patrons of public schools in America who, because of their belief in universal education and their faith in democracy, control in a large measure the efficiency of our educational system by the enlightened way in which they financially support it. It is intended that this report shall assist in the solution of the salary problem for teachers in three ways : ( i ) by serving to stimu- late the interest of the teachers and school patrons of the country in the problem of better pay for teachers; (2) by furnishing material 1 N. E. A. Pamphlet— "Thru the Schools in War Time. NATIONAL EDUCATION ASSOCIATION and suggestions to be used by superintendents and teachers in their local campaigns for better salaries; and (3) by encouraging school officials or teachers' organizations everywhere to make careful investi- gations of their local conditions and problems, in order that teachers' salary schedules may be based upon business principles and prevailing economic conditions, rather than upon tradition and sentiment. PART II— SALAR: I CX) o P 2 CO Directions: In answering the following questions, (1) Answer set "A" for elementary school teachers, set " B " for intermed (2) Where accurate figures are not available, give estimates. (3) Make all financial figures and estimates cover a period of 12 months. SET "A" ELEMENTARY SCHOOLS including grades 1. 2, 3, 4, 5, 6, and where no separate intermediate school is maintained grades 7 and 8 also. SET "B" INTERMEDIATE SCHOOLS (Jr. H. S.) including grades 7 and 8 or 7. 8. and 9, when maintained as separate divisions of the school. SET "C" HIGH SCHOOL including grades 10, 11 12 where intermediate schools are maintained, otherwise grades 9, 10, II. and 12. 1. How many months are these schools in se; 2. Do you have an establisht salary schedule 3. What is the minimum for elementary teai 4. What is the maximum for elementary tea^ 5. What is the annual increase for element; 6. Upon what conditions does the granting 7. What does good board and a comfortable 8. Is teaching experience a prerequisite to el How much? 9. State the number of years in academic an schools 1. How many months are these schools in se 2. Do you have an establisht salary schedu] 3. What is the minimum for intermediate ■ 4. Wliat is the maximum for intermedial 5. What is the annual increase for intermi 6. Upon what conditions does the granting 7. What does good board and a comfortable 8. Is teaching experience a prerequisite to e How much? 9. State the number of years in academic an schools 1. How many months are these schools ii 2. Do you have an establisht salary schedu 3. What is the minimum for high school 4. What is the maximum f jr high school 5. What Is the annual increase for high scl 6. Upon what conditions does the grantim 7. What does good board and a comfortable 8. Is teaching experience a prerequisite to How much? 9. State the number of years in academic a Note: If you have a printed salary schedule, please enclose a cop: PART 1— SALARIES PAID TEACHERS, 1918-19 ^ ELEMENTARY SCHOOL INTERMEDIATE SCHOOL N. of "SsS'f'JiTl'J.''^''" "iit; 'i'ui'ni tn^'StS"" " "IBBi-w:^^- Teacher* withdrawing l^^Z No ofTwch w "££'!• JS'tL ,",°yL! tS" .iSwS. thh year? 3r, "iiiir I joo. 3 son- S40 !S0- »• «.M» 650- 009 700- 74» 7SI). 799 S0O.S49 850-199 900- 949 9J0-999 1000.1049 70M.1009 1100-1149 llSO-1199 1100-1149 17S0.1299 1300-1J49 1J50-1J99 1400.1449 US0-U99 lS0O-li9» 170O-1J99 1S00-H99 1900-1999 7000 7099 2100-7199 7700-7799 1 7300-7919 7400-7499 750O-79« '"""cl 1 b 6 PART II— SALARIES PAID TEACHERS, 1918-1919 1 H ma m (h thn« »tl mIi "n Wo » Do you bavean «.«blUht «.a,v «h«li,.efor .I.m^iUxv «:too. .«ch«,P ei-Sentarv ■ f 1 Wh t. IB th n al i f letncntJtv heraf iDdudioE erades 1. 3. 3, r.:rr:r::":"rir:o::tTr;r::v-^„,»cw.„u,c..^ . school IB mainUincd ' H mu h? grades 7 an w. 1 How man raonlht are Ihwo »chool» in «e»ion? '- Do vou hav. aa e,Ul..iBh. «l«v «h«Iu.« for in.er»«iia.c school .«.c.«=. What ii the maximum for intenoediale Macherfl? SCHOOLS What l9 the annual increaM for intermediate teachers? U n what condili n» d the n Unit of this in d d? including eradw 7 and Wh.. d.„ ^ „^ .„d > ...t.™b,c ™„ c, „ ,„.„=di.„ «« .«.b» to „u,c.„.a„l.y (.2 ™n.h.,> ■""•"■■• °"""'°°'- ' How much? su... ,M. .«.b„ ., ,^. .. .»...,. »d „,.»i„,a p„™,.o. >b.v, .bo «b „* .h„b ,. . PC,,,,,*. ,. .,«u.„ i. „.. m™..^ , How many moMbs aw IheK «iooli in Mwion? Doy™b.v.„„b,b,l.b.«,..,«b.du,„„,M.b«bo.l.«,.b.„, .. HIGH SCHOOL w";,:,ltZ7to™Lrbrr.ir.»':L^;:::::::::^ :: r,sri°Tro: Wh.. do., good b».,d „d . ..mforub,. „.„ ..». . h..b Kh,., .„,b„ ta y„,„ cmb.™,., (.2 .b.n.h.)- , II, nnd U. How much? Slate the numher of yean in academic and professional preparatfon above the 8th grade which (s a prcrequUlt. to election in your Ugh ach S PAID TEACHERS, 1918-1919 school teachers (Junior H. S.) and set "C" for high school teachers. elementary school teachers? •s? s? teachers? his increase depend? )m cost an elementary school teacher in your community (12 months)?, jn in your elementary schools? ofessional preparation above the 8th grade which is a prerequisite to election in your elementarj' n? r intermediate school teachers? lers? ichers? ;e teachers? his increase depend? m cost an intermediate school teacher in your community (12 months)?, on in your intermediate schools? jfessional preparation above the 8th jjrade which is a prerequisite to election in your intermediate sion? high school teachers? hers? hers? :eachers? ;his increase depend? n cost a high school teacher in your community (12 months)?, tion in your high schools? ofessional preparation above the 8th grade which is a prerequisite to election in your high school CHAPTER I. The Salary Situation in the United States as Shown by Reports from Three Hundred and Ninety-two City and County Superintendents. During February, 1919, the following letter was sent out from the National Education Association Headquarters in Washington to selected cities and counties of all sizes in all sections of the country. January 31, 1919. To THE Superintendent of Schools : The National Education Association wants to help solve the problem of teachers' salaries, hi order to get the information which will be most helpful to superintendents and teachers thruout the country, it is necessary to have your assistance. I am enclosing herewith two forms. On the first of these blanks you are askt to report the salaries of all teachers now in the employ of your school system according to a schedule which appears on the form, and to answer certain other questions which are of importance to all who have the problem of the increase of teachers' salaries before them for consideration. Will you not have this form filled out imme- diately and return it to me. The data included on this form we can put into shape very rapidly. The other form is an individual teacher's blank. In order to save the very great expense in postage I am asking that you mimeograph this blank exactly as it appears on the sheet enclosed, and that you have it filled out by your teachers and sent to me as soon as possible. If you find it impossible to take care of this matter for me, will you not turn it over to your local teachers' association. We must have prompt assistance of all school systems receiving this request in order to make the study useful for those who hope to use our data in the development of new salary schedules for next year. Kindly send reports to me at 1400 Massachusetts Avenue, Washington, D. C. I know that I can count on you and your teachers to co-operate with us in this work. The efficiency of American Schools and the future of our profes- sion are involved in the movement to secure a living and a saving wage for teachers. Yours faithfully, George D. Strayer. The questionnaire blank to be filled out by the superintendents is given on the following insert. NATIONAL EDUCATION ASSOCIATION The blank to be mimeographt or printed and filled out by the individual teachers. THE SALARIES OF TEACHERS IN THE UNITED STATES To THE Teachers of the United States : The information requested below is desired by the National Education Association in order to aid in securing adequate salaries for teachers thruout the country. You are vitally interested in the results. All information will be used in an entirely impersonal way — be frank and as accurate as possible. Fill out the blank today. Very cordially yours, George D. Strayer, President of the N. E. A. 1. State City School Date 2. Name Age Sex Married? Yes No 3. How many persons are entirely dependent upon you for support? How many in part dependent upon you for support?... 4. Are you teaching in kindergarten ? elementary ? inter- mediate ? or high school ? What grade or subj ect ? Are you a principal? What part of your time do you teach? Are you a supervisor ? What do you supervise ? 5. Number of years experience in rural schools? kindergarten? graded schools ? intermediate schools (Junior or H. S.) ? high schools ? normal or college ? In present system ? Total number of years teaching experience? Give accurate amounts or careful estimates for the items below. Each amount or estimate should include a period of twelve months. 6. Annual salary received from the school. .1917-18 1918-19 7. Number of months taught during 1917-18 1918-19 8. Bonus, if any, received from the school.. 1917-18 1918-19 9. Additional income, not included above, for tutoring, evening school, summer work, writing, lecturing, etc 1917-18 1918-19 10. Annual amount spent for personal living expenses: room rent, board, clothes, car fare, medical attention, etc 1917-18 1918-19 11. Annual amount spent for your recre- ation, books, magazines, travel, profes- sional advancement, etc 1917-18 1918-19 12. How many years did you attend high school? Did you graduate?. . . How many years did you attend H. S. training class ? . . . . Did you graduate ? . . . How many years did you attend normal school? Did you graduate?. . . How many years did you attend college or Univ. ? Did you graduate ? . . . How many years did you attend special schools ? Did you graduate ? . . . In the above figures, no year of training or study should be listed in more than one place. Please write distinctly. Make explanatory notes on back. The administrative problems of cities vary with the size and loca- tion of the city. Consequently, it seemed advisable to separate the cities into size groups and geographical groups in order to make the TEACHERS' SALARIES AM) SALARV SCHEDULES 9 collected data on salaries more immediately comparabte with the situ- ation in any particular place. The aim in determining the limits of the size groups was to secure sizes in which the administrative problems and the administrative machinery were more or less distinctly characteristic of cities of that size. The size groups as here explained will be used thruout the study. Size I. Cities having a population of 100,000 or more. Size II. Cities having a population of 50,000, but less than 100,000. Size III. Cities having a population of 25,000, but less than 50,000. Size IV. Cities having a population of 10,000, but less than 25,000. Size V. Cities having a population of 5,CK30, but less than 10,000. Size VI. Cities having a population of 5,000 or less. In determining the size group for any city the population was taken, where possible, from "Estimates of Population for the United States for 191 6," Bulletin 133 of the Bureau of Census. For cities not included in this list the population as given in the 13th Census for 1910 was used. The aim in determining which states to include in the geographical groups was to secure groups in which the economic, natural, industrial and educational conditions were more or less distinctly characteristic of the states within that group. The geographical groups as here explained will be used thruout the study. Group A. Eastern (Industrial), including Connecticut, Maine, Massachusetts. New Hampshire, New Jersey, New York, Pennsylvania, Rhode Island and Vermont. Cjroup B. Southern States, including Alabama, Arkansas. Delaware. District of Columbia, Florida, Georgia, Kentucky, Louisiana, Maryland, Mississippi, North Carolina, South Carolina, Tennessee. Texas. Virginia and West Virginia. Group C. Great Lakes (Manufacturing), including Illinois. Indiana, Michigan. Ohio, Wisconsin. Group I). Great Plains (Agricultural), including Iowa, Kansas, Minnesota, Missouri. Nebraska. North Dakota, Oklahoma and South Dakota. Group E. Western, including Arizona, California, Colorado. Idaho, Montana. Nevada. New Mexico. Oregon, Utah. Washington and Wyoming. Other groupings are possible in which the states wotild be a little more homogeneotis from the standpoint of educational problems, but tiot without increasing the number of groups which would complicate the tabulation of data- beyond the advantage gained. Three hundred and ninety-two replies were received from city and county superintendents in time to be incorporated in all the tables. Thirty-one came in too late to be used, save for special comparison in the distribution of salaries, and in five or six cases the blank was not filled out completely, and it was impossible to place it in its proper group. 10 NATIONAL EDUCATION ASSOCIATION The lists given in appendixes I and II give the cities induded in the study, by groups. Any city can be located in the list by determining its size and geographical group. For example, Holyoke, Massachusetts, belongs in geographical group A and size group II. Similarly, St. Louis, Missouri, would be DI. It is readily seen from an examination of this list of cities that, to a very markt degree, it is representative of American cities. Every city size of every geographical group is represented, and this repre- sentation is made by typical cities. The manufacturing center, the commercial center, the city with a large immigrant population, the mining center, the distributing center for agricultural districts and the health resort can all be found in the different size groups. The repre- sentative nature of the cities makes the results of the study even more significant and reliable. Only ten county superintendents had the blanks filled out in any number, so that the results of the study are more representative of city conditions than rural.^ The effect of an introduction of more rural teachers into the study would materially decrease the median salaries found. This generalization is substan- tiated by the returns which were tabulated. It is also true that salaries are better in the rural connnunities which have a stronger county organization as compared with those in which the single school is the principal imit. In the following tables the returns will be given according to size groups, and where desirable, by geographical groups also. In most of the questions studied the difference caused by the size of the city is greater, more significant and more usable than the difference caused by location, consequently where only one grouping is used it will be that of size. New York City, Chicago and Philadelphia, cities whose populations are over a million, are not included in these tables because it was felt that, in many ways, their educational situation is unique, and also that because of their size and the number of teachers employed, they would unduly influence the returns from other cities. The following terms will be used frequently and will need but a word of explanation. A Distrihiition ("distribution table") is an arrangement of a group of measures in ascending (or descending) order, and indicates the number of times each measure is found in the cases under considera- tion. — The First Quartile (Q.) or 25 percentile is that point on the scale below which fall exactly one-fourth of the distributed cases, and above which three-fourths of the distributed cases fall. ■■The returns will be referrcil lo in I lu- study ;is ''\]<)~ cities" reporting even tho this uniiber inrhiHed tlie ten connties, TEACHERS' SALARIES AND SALARY SCHEDULES 11 The Median (mid-point) is that point on the scale which divides the distribution exactly in half, having one half of the cases fall below and the other half fall above. The Third Qiiartile (Q:j) or 75 percentile is that point on the scale below which fall exactly three- fourths of the distributed cases, and above which one-fourth of the distributed cases fall. The Qiiartile Deviation (Q) is one-half the distance on the scale between the first quartile and the third quartile. It is used as a con- venient measure of variation, since from it, it is easy to determine the distance upon the scale which will include the middle fifty per cent of the cases, and thereby determine the closeness of the grouping of the individual cases about the median. For purposes of computing medians and quartiles in this study the plan w^as adopted of making the steps take their names from the beginning of the steps. Thus, salary group $500 extends from $500 to $549.99. The first steps of all distributions are supposed to begin at zero and extend to the beginning of the next step. By using this arrangement for the steps it will tend to make all the medians and quartiles a little higher than they are in reality, because of the prevail- ing custom among school men of granting salaries, increases, etc., in round numbers. Thus, in the $500 salary group there will be more teachers receiving an even $500 than will be distributed between $500 and $549. It was considered that this "padding of salaries" was less harmful than the lack of uniformity, or than the additional work and chances of error involved in the other method. In all statements and computations involving salaries and other items the results have been computed to the nearest dollar or to the nearest unit. A few exceptions to this are necessary where several medians are so close that the frac- tions are necessary in order to make comparisons. Part I of Questionnaire to Superintendents In Tables I-I\' inclusive the salaries of teachers of 392^ cities are distributed according to city sizes. Separate distributions are made for elementary teachers, for intermediate teachers, for high school teachers and for all teachers combined. Elementary teachers' salaries, as shown in Table I, range from $200 to $2,200 for the entire group. The greatest range in any one group is in Size II, with a difference of $1,900 between the lowest and the highest.^ The greatest difference between the median salaries of any two groups is $259. (I and V.) 1 List of these cities given in Appendix I. 2 There is a slight chance that a few of the higher salaries may be those of principals or special supervisors, even tho the blank stated that these were not to be included. Ex- cept in a few cases, where the salaries were verified, thcr were used as they were sent in by the superintendent. 12 NATIONAL EDUCATION ASSOCIATION TABLE I ELEMENTARY TEACHERS' SALARIES FOR 1918 19 IN THE 392 CITIES REPORTING (Distributed according to size of the cities and salaries received.)* Num ' er of teachers in each s'ze group Salary Groups I 11 I.I IV V VI Totals « 200- 249 9 1 10 iSO- 299 300- 349 15 3 21 15 112 10 176 350- 5<}9 11 32 17 19 25 104 400' 449 19 3i 59 9 42 28 190 450- 499 17 53 106 76 125 70 447 SOO- 549 80 49 129 181 177 127 743 550- 599 251 100 157 336 221 252 1317 600- 649 353 187 263 511 278 343 1935 650- 699 276 227 347 579 270 342 2041 700- 749 1001 229 407 489 260 386 2772 750- 799 1566 297 461 438 173 215 3150 800- 849 1369 320 631 500 146 149 3115 850- 899 720 358 618 339 103 87 222S "^00- 949 1766 362 567 355 125 85 3260 •950- 999 697 432 446 240 84 43 1942 '1000-1049 725 428 363 308 49 49 1922 1050-1099 393 187 229 128 20 30 987 1100-1149 1153 127 154 131 5 25 1595 1150-1199 781 36 211 28 7 11 1074 1200-1249 560 93 317 71 8 7 1056 1250-1299 909 5 10 12 6 1 943 1300-1349 96 6 42 50 6 2 202 1350-1399 615 1 13 2 1 2 634 1400-1449 480 5 28 9 2 1 525 1450-1499 5 1 2 8 1500-1599 >0 7 4 9 1 41 1600-1699 40 2 2 5 1 50 1700-1799 10 1 5 16 1800-1899 9 2 1 12 1900-1999 .3 1 4 2000-2099 1 1 2100-2199 1 1 2200-2299 1 1 2300-2399 2400-2499 • 2500-2999 3000-and over. Totals 13946 3554 5618 4846 2242 2293 32499 **Q1 S 796 S 751 S 736 S 656 S 569 S 609 $ 721 Median 936 889 866 774 677 693 856 Q^ 1152 1002 997 920 801 782 1025 Q 178 126 131 132 111 87 152 * For explanation of size groups see page 9. **For explanation of terms used see page 10 and 11. It is noticeable that the median salary decreases with each lower size group, except between sizes V and VI, and that the quartile devia- tion is largest in the cities of Size I, indicating a wider range of, salaries, and smallest in cities of Size VI, indicating a closer grouping around the median salary. In Group I seventy-five per cent of the teachers get more than $796, while in Group VI seventy-five per cent of the teachers receive less than $782. With the median salary in cities of Size VI, $243 less than in cities of Size I, and the quartile deviation also smaller, it is evident that the salary situation for ele- mentary teachers is much worse in cities below 5,000 inhabitants than TEACHERS' SALARIES AND SALAR\' SCHEDULES lo TABLE II INTERMEDIATE TEACHIiRS' SALARIES FOR 191H 19 IN THE 392 CITIES REPORTING (Distributed according to size of the cities and salaries received.)* Number of Teachers in each size group Salary Groups I II Ill IV V VI Totals $ 200- 249 250- 299 300- 349 1 1 350- 399 400- 449 2 1 1 1 5 450- 499 1 1 2 2 6 500- 549 7 17 4 28 550- 599 1 4 4 34 44 87 600- 649 4 1 3 12 29 21 70 650- 699 7 8 28 36 38 117 700- 749 16 9 27 43 59 154 750- 799 4 9 13 24 59 39 148 800- 849 5 9 20 43 36 27 140 850- 899 17 8 39 30 25 27 146 900- 949 4 22 61 38 49 15 189 950- 999 49 5 35 30 13 8 140 1000-1049 13 41 53 32 15 6 160 1050-1099 14 8 42 40 6 6 116 1100-1149 56 14 42 30 7 6 155 1150-1199 22 23 24 23 5 4 101 1200-1249 37 3 53 22 1 116 1250-1299 25 19 1 2 47 1300-1349 55 27 9 1 92 1350-1399 33 3 36 1400-1449 20 17 2 2 41 1450-1499 24 1 3 28 1500-1599 15 7 22 1600-1699 7 3 4 1 IS 1700-1799 4 2 2 8 1800-1899 4 1 1 6 1900-1999 5 3 8 2000-2099 2 2 2100-2199 1 1 2200-2299 2300-2399 1 I 2400-2499 2500-2999 3000-and over. Totals 421 169 487 420 380 309 2186 **Q1 $1072 S 840 S 919 $ 801 $ 669 $ 657 $ 777 Median 1226 1007 1047 943 775 738 951 Q3 1362 1092 1210 1098 905 844 1143 Q 145 126 146 149 118 94 183 *For explanation of size groups see page g. **For explanation of terms used see pages lo and ii. in those over 100,000. The median salary for elementary teachers in all groups is only $856. This means that 16,249 teachers of the 32,499 reported received less than $856 during the year 1918-19. This figure would have to be reduced materially to represent the median salaries of all elementary teachers because of the small representation of rural and village teachers. Since 86 per cent of the teachers represented in Table I are from cities above 10,000, a median of $856 is more directly comparable with the results of the study made by the National Educa- tion Association for 1917-18^ in which the median salary for ele- mentary teachers in 320 cities over 10,000 population was found to '■Teachers Salaries and Cost of Living 1918 — page 58. 14 NATIONAL EDUCATION ASSOCIATION TABLE III HIGH SCHOOL TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to size of the cities and salaries received.)* Number o teachers in each size group Salary Groups I II III IV V VI Totals $ 200- 249 250- 299 300- 349 2 1 1 4 350- 399 1 1 2 400- 449 3 1 4 450- 499 1 4 2 7 500- 549 2 1 6 4 2 I 16 550- 599 2 2 2 4 10 600- 649 4 5 8 11 13 41 650- 699 5 3 11 18 12 27 76 700- 749 7 12 16 3i 31 62 161 750- 799 27 15 21 64 40 65 232 800- 849 17 15 45 92 102 136 407 850- 899 32 16 45 63 90 96 342 900- 949 63 35 73 148 138 173 630 950- 999 21 23 112 106 58 63 383 1000-1049 423 49 99 172 86 81 910 1050-1099 45 42 104 68 40 27 326 1100-1149 79 56 109 72 29 34 379 1150-1199 103 47 32 59 13 12 266 1200-1249 201 98 158 94 32 44 627 1250-1299 67 78 51 43 17 13 269 1300-1349 121 47 84 88 12 19 371 1350-1399 92 67 50 40 22 19 290 1400-1449 140 94 86 91 15 10 436 1450-1499 54 14 74 21 5 3 171 1500-1599 306 61 109 105 39 23 643 1600-1699 237 77 191 58 14 8 585 1700-1799 215 27 34 32 4 1 313 1800 1899 355 25 55 27 4 3 469 1900-1999 250 13 21 6 2 292 2000-2099 90 9 11 20 1 2 133 2100 2199 61 13 4 4 1 83 2200-2299 23 5 9 7 44 2300-2399 14 4 18 2400-2499 35 1 1 37 2500-2999 10 1 11 3000-and 2 2 over Totals 3094 944 1639 1547 823 943 8990 **Q1 $1171 $1121 $1034 $ 935 $ 853 $ 822 $ 991 Median 1513 1288 1242 1097 944 918 1224 Q3 1815 1482 1537 1383 1107 1 1039 1559 Q 322 181 252 224 127 1 109 284 *For explanation of size groups see page 9. **For explanation of terms used see pages 10 and 11. be $816. When this comparison is made and allowance made for the effect of Groups V and VI, it appears that the median salary for ele- mentary teachers is from $40 to $50 more in 1918-19 than the previous year. This shows that there has been a rather general tho small in- crease during the year in teachers' salaries. Table II shows the situation for intermediate teachers in the cities reporting intermediate schools. The range of salary for the entire group is $2,000, the same as for elementary teachers, but the range between median salaries of groups is $498 (I and VI) which is nearly double the difference found in elementary schools. The median salaries decrease with every decrease in city size, and are also in every case higher than for elementary teachers. The quartile deviation is more TEACHERS' SALARIES AND SALARY SCHEDULES 15 TABLE IV ELEMENTARY. INTERMEDL\TE AND HIGH SCHOOL TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to size of the cities and salaries received)* Number of teachers in each size group. Salary Group; I 11 III IV V VI Totals S200- 249 9 1 10 250- 299 300- 349 17 3 22 15 113 11 181 350- 399 11 i^ 17 20 25 106 400- 449 24 34 60 9 42 30 199 450- 499 17 55 111 78 125 74 460 500- 549 82 50 135 192 196 132 787 550- 599 252 100 163 342 257 300 1414 600- 649 361 188 271 531 318 377 2046 650- 699 281 237 366 625 318 407 2234 700- 749 1008 257 432 549 334 507 3087 750- 799 1597 321 495 526 272 319 3530 800- 849 1391 344 696 635 284 312 3662 850- 899 769 382 702 432 218 210 2713 900- 949 1833 419 701 541 312 273 4079 950- 999 767 460 593 376 155 114 2465 1000-1049 1161 518 515 512 150 136 2992 1050-1099 452 237 375 236 66 63 1429 1100-1149 1288 197 305 233 41 65 2129 1150-1199 906 106 267 110 25 27 1441 1200-1249 798 194 528 187 41 51 1799 1250-1299 1001 83 80 56 23 16 1259 1300-1349 272 53 153 147 19 22 665 1350-1399 740 68 63 45 23 21 960 1400-1449 640 99 131 102 19 11 1002 1450-1499 83 15 77 22 5 5 207 1500-1599 341 68 120 114 40 23 706 1600-1699 284 79 196 67 16 8 650 1700-1799 229 27 37 39 4 1 337 1800-1899 368 27 56 29 4 3 487 1900-1999 255 16 21 9 2 1 304 2000-2099 90 10 11 22 1 2 136 2100-2199 62 13 4 5 1 85 2200-2299 23 6 9 7 45 2300-2399 14 4 1 19 2400-2499 35 1 1 37 2500-2999 10 1 11 3000-and 2 2 over Totals 17,461 4667 7744 6812 3446 3545 43675 **Q1 S 825 $ 788 $ 785 S 692 $ 617 $ 642 S 756 Median 1013 943 928 841 750 741 917 Q3 1254 1078 1122 1024 864 889 1132 Q 215 145 169 166 124 124 188 *For explanation of size grroups see page g. *¥oT explanation of terms used see pages lo and ii. uniform and in most groups slightly less than for elementary teachers. The intermediate school as a separate division of the school system is a development of recent years, and, in a majority of cases, was started with the best teachers in the system, which would partially account for the higher salaries. Another reason for this is the departmental organi- zation of intermediate schools and the additional preparation demanded in many cases. In Groups I, II, III and IV the median salary for intermediate teachers is higher than the third quartile of elementary leachers in those groups. Table III shows the distribution of salaries of high school teachers 16 NATIOAAL EDLCATIUN ASSOCIATION CHART I CHART SHOWING MEDIAN SALARIES FOR CITIES IN THE DIFFERENT SIZE GROUPS FOR ELEMENTARY TEACHERS, INTERMEDIATE TEACHERS, HIGH SCHOOL TEACHERS, AND FOR THE TOTAL OF THE THREE Elementary Intermediate High School Total for all teachers = M^N \E \E \ \= be for the 392 cities reporting. The range of high school salaries is much more than for either elementary or intermediate, being at least $2,700. The greatest di^erence between median salaries of any two groups is $595- (I and VI.) This is nearly $100 more than the same difference for internrediate teachers, but is no more in proportion to the size of the median salaries. TEACH liKS' SALARIES AAA) SALARV SCHEDULES 17 The effect of the size of the city upon the salary paid is very notice- able, as in the intermediate salaries. The biggest difference between any two consecutive groups is between I and II, where the median salaries differ by $225. The quartile deviation for high school teachers is larger and more varied than for elementary or intermediate teachers. A quartile devia- tion of $322 for cities in Group I shows a large variation in the salaries paid high school teachers in the larger cities, since the middle 50 per cent of the teachers spread over a range of $644. This is three time as large as the quartile deviation for cities in Group VI. The comparison of the median salaries received by high school teachers with those of intermediate and elementary teachers brings very forcibly to light several conditions which school men have known to exist, and yet have done nothing to adjust. High school salaries are as much higher than intermediate as the intermediate are higher than the elementary. Thus, from the stand- point of financial reward there is an advantage in changing from ele- mentary to intermediate and from intermediate to high school. There is more preparation demanded in each of the two upper divisions also, but the decided increase in salary tends to take from the elementary field, particularly, the strongest and most ambitious teachers. The difference between the high school and the elementary salaries is par- ticularly noticeable. In every size group of cities, the first quartile of the high school salaries is higher than the third quartile of the elementary salaries. In other words, three-quarters of the high school teachers receive more salary than the best paid quarter of all ele- mentary teachers. Such a difference is so large that it becomes a social distinction and in several ways mitigates against the proper coordina- tion of the different divisions of the schools. This difference in salary also makes it possible to demand more preparation on the part of the high school teachers, but does not add any incentive to further prepa- ration for teaching in the elementary schools,- — a work as important as any other. Table IV which gives the distribution of the salaries for elementary, intermediate and high school teachers combined, shows the effect of the higher salaries paid the teachers in the two upper divisions in rais- ing the median salaries over those for elementary teachers. The median salary for all teachers in cities of Group I is only $1,013. Half the teachers in these cities get less than $1,013 a year, less than $85 a month for the twelve months. This shows the seriousness of the salary problem in the larger cities. Some of these cities have already set the minimum salary at $1,200 a year, nearly $200 more than the present median salary. 18 NATIONAL EDUCATION ASSOCIATION TABLE V ELEMENTARY TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to geographical grouping and salaries received.)* Number of teachers in each geographical group Salary- Groups A B C D E Totals $ 200- 249 10 10 250- 299 300- 349 68 106 2 176 350- 399 9 68 13 14 104 400- 449 45 114 15 10 6 190 450- 499 91 247 68 34 7 447 500- 549 250 246 151 89 7 743 550- 599 568 328 256 161 4 1317 600- 649 754 448 417 201 65 1935 650- 699 815 267 526 239 94 2041 700- 749 925 943 473 260 171 2772 750- 799 829 1322 471 351 177 3150 800- 849 1135 729 453 516 282 3115 850- S99 899 402 335 381 208 2225 900- 949 666 1282 380 547 385 3260 950- 999 885 120 264 369 304 1942 1000-1049 825 91 194 408 404 1922 1050-1099 378 28 213 142 226 987 1100-1149 223 62 93 738 279 1595 1150-1199 113 59 160 91 651 1074 1200-1249 67 5 138 428 418 1056 1250-1299 101 7 6 610 219 943 1300-1349 19 5 32 58 88 220 1350-1399 13 5 72 544 634 1400-1449 16 1 14 15 479 525 1450-1499 6 1 1 8 1500-1599 13 2 10 11 5 41 1600-1699 13 1 6 15 15 50 1700-1799 9 5 2 16 1800-1899 3 1 8 12 1900-1999 3 1 4 2000-2099 1 1 2100-2199 1 1 2200-2299 1 1 2300-2399 2400-2499 2500-2999 3000-and over. Totals 9738 7048 4900 5771 5042 32499 **Q1 $ 690 $ 669 $ 679 S 808 $ 935 $ 721 Median 823 773 807 961 1132 856 Q3 964 888 972 1141 1271 1025 Q 137 110 147 167 168 152 * For explanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. In tables V to VIII, inclusive, the salaries of teachers in 392 cities are distributed according to geographical grouping. Tables \ , VI and VII give the distribution of elementary, intermediate and high school teachers' salaries, and Table \TII a combination of these three. These tables show that the range of salary is almost as great within a geographical group as it is within size groups. They also show that there is nearly as much difiFerence between the median salaries of different geographical groups as there is between the median salaries of size groups. The median salaries for elementary, intermediate and high school teachers are higher in Group E'than in any other group, arud lower in Group R than in the others. The quartile devia- TEAClUiRS' S.IL.IRJES AXD SALARY SCHEDULES 19 TABLE VI INTERMEDIATE TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to geographical grouping and salary received.)* Salary Number of teachers in each geographical group Groups .\ B C D E Tola. S 200- 249 250- 299 300 349 350- 399 400- 449 450- 499 500- 549 550- 599 600- 649 650- 699 700 749 750- 799 800- 849 850- 899 900- 949 950- 999 1000-1049 1050-1099 1100-1149 1150-1199 1200-1249 1250-1299 1300-1349 1350-1399 1400-1449 1450-1499 1500-1599 1600-1699 1700-1799 1800-1899 1900-1999 2000-2099 2100-2199 2200-2299 2300-2399 2400-2499 2500-2999 3000-and over. 1 1 3 35 22 55 30 32 38 26 24 75 77 34 75 43 34 19 37 2 5 3 2 3 3 1 3 5 19 41 26 31 25 9 15 27 29 IS 10 17 IS 13 14 1 5 8 7 1 1 1 8 15 19 51 71 38 49 54 19 24 24 23 27 18 'I 2 8 1 1 3 1 3 2 1 1 5 3 6 8 29 15 26 25 47 13 15 6 19 10 8 2 23 23 13 8 12 7 2 4 5 1 1 1 4 19 21 23 19 35 18 34 35 23 8 42 14 18 1 8 16 6 4 1 5 6 28 87 70 117 154 148 140 146 189 140 160 116 155 101 116 47 92 36 41 28 22 IS 8 6 8 2 1 1 Totals 680 337 483 336 350 2186 ♦*Q1 Median Q3 Q S 786 999 1138 176 S 631 832 1039 204 S 769 889 1078 155 $ 833 962 1330 249 S 899 1000 1226 164 S 777 951 1143 183 * For e.xplanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. tion differs as much as between size groups. For elementary teachers. Group E not only has the highest median salary, but also the largest quartile deviation. For intermediate teachers the largest quartile deviations are in Groups D and B, and for high school teachers they are in D and C. When all the teachers are considered together it is found that quartile deviations increase directly as the median salary increases. This is due to the fact that in any geographical section the salaries are increast by some states and not others, or by certain cities and not others, but in enough instances to increase the median salaries for the entire section. This leaves a greater difference, however, 2U XAllUXAL tDLLATlUA ASSUCIATION TABLE VII HIGH SCHOOL TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to geographical grouping and salaries received.)* Number of teachers in each geographical group Salary Groups A B C D E Totals $ 200- 249 250- 299 300- 349 350- 399 1 1 2 4 400- 449 1 1 2 450- 499 1 3 4 500- 549 6 1 7 550- 599 9 3 2 2 16 600- 649 2 4 4 10 650- 699 19 14 6 2 41 700- 749 28 34 8 6 76 750- 799 68 50 28 15 161 800- 849 76 63 59 30 4 232 850- 899 162 56 122 59 8 407 900- 949 101 46 112 60 21 342 950- 999 189 94 153 149 45 630 1000-1049 161 30 114 61 17 383 1050-1099 198 443 102 124 43 910 1100-1149 134 21 69 76 26 326 1150-1199 144 45 61 78 51 379 1200-1249 200 126 102 119 82 627 1250-1299 107 20 43 58 41 269 1300-1349 96 38 88 58 91 371 1350-1399 110 24 43 44 69 290 1400-1449 100 30 84 110 112 436 1450-1499 59 6 27 19 60 171 1500-1599 125 66 77 69 306 643 1600-1699 85 37 61 86 316 585 1700-1799 54 12 39 77 131 313 1800-1899 53 42 44 215 115 469 1900-1999 40 35 54 32 131 292 2000-2099 44 10 21 44 14 133 2100 2199 35 1 5 4 38 83 2200-2299 9 3 13 17 4 44 2300-2399 5 4 9 18 2400-2499 4 1 32 37 2500-2999 7 4 11 3000-and over. 1 1 2 Totals 2529 1440 1576 1694 1751 8990 **Q1 S 943 S 947 $ 917 $1015 $1341 $ 991 Median 1139 1036 1107 1273 1559 1224 Q3 1394 1236 1424 1708 1698 1559 Q 226 145 254 347 179 284 *For explanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. between the places remaining on the old schedules and those on the new, and consequently, increases the quartile deviation. Subsequent tables will show that the sectional differences which now exist in salaries are caused by several conditions. Some of these are traditional schedules, public indifference and the like, and such are easily removed. Some of the conditions, however, are more fundamental and involve the organization of school control, the lack of expert control of school budgets, and the very low per capita wealth in certain sections. These problems are harder to solve ; as a matter of fact, under the present plan of free competition they TEACHERS' SALARIES AND SALARY SCHEDULES 21 TABLE VIII ELEMENTARY. INTERMEDIATE AND HIGH SCHOOL TEACHERS' SALARIES FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to geographical grouping and salaries received.)* Number of teachers'in each geographical group Salary Groups A B C D E Totals $ 200- 249 10 10 2.S0- 299 300- 349 70 107 2 2 181 350- 399 10 69 13 14 106 400- 449 46 120 15 11 7 199 450- 499 92 258 68 35 7 460 500- 549 262 268 154 96 7 787 550- 599 60S 373 268 164 4 1414 600- 649 795 538 438 209 66 2046 650- 699 898 432 553 253 98 2234 700- 749 1023 1018 552 304 190 3087 750- 799 937 1394 601 396 202 3530 800- 849 1335 800 613 601 313 3662 850- 899 1028 475 496 466 248 2713 900- 949 879 1405 587 743 465 4079 950- 999 1121 165 397 443 339 2465 1000-1049 1100 544 320 547 481 2992 1050-1099 546 66 306 224 287 1429 1100-1149 442 122 377 835 353 2129 1150-1199 257 148 214 137 685 1441 1200-1249 301 145 256 555 542 1799 1250-1299 227 28 60 670 274 1259 1300-1349 152 48 129 139 197 665 1350-1399 125 32 SO 139 614 960 1400-1449 121 38 ■ 106 138 599 1002 1450-1499 68 7 27 28 77 207 1500-1599 140 69 88 92 317 706 1600-1699 101 38 68 108 335 650 1700-1799 66 12 47 «1 131 337 1800-1899 57 42 46 227 115 487 1900-1999 40 38 57 37 132 304 2000-2099 44 11 23 44 14 136 2100-2199 35 1 6 5 38 85 2200-2299 7 4 13 17 4 45 2300-2399 5 5 9 19 2400-2499 4 1 32 37 2500-2999 7 4 11 3000-and over 1 1 2 Totals 12,947 8,825 6,959 7,801 7,143 43.675 **Q1 S 722 S 702- S 721 S 839 $ 976 S 756 Median 869 794 871 I lOlS 1187 917 Q3 1028 927 1074 1 1233 1398 1132 Q 153 113 177 ) 197 211 188 *For explanation of geographical groups see page 9. **For explanation of terms used see p^ges lo and ii. are constantly growing worse. For example, many districts in Sec- tion B are carrying the maximum tax allowed by law for school purposes, and are yet unable to meet the salary schedules of other sections. They are, therefore, compelled to take inferior teachers or teachers with less professional training, which will, in turn, tend to decrease the per capita wealth still more, in spite of the fact that the particular community is more progressive educationally and carries a heavier tax burden than other places which outbid it for teachers. Some of the findings of this study of teachers' salaries will show the extent to which these conditions exist, and where possible, will be made to throw light on the remedy. It is obvious that as prices of food, clothing, labor, cost of education, etc., are becoming standardized for the nation, there should not be a sectional difference in median 22 NATIONAL EDUCATION ASSOCIATION CHART II CHART SHOWING MEDIAN SALARIES FOR CITIES IN THE DIFFERENT GEO- GRAPHICAL GROUPS FOR ELEMENTARY TEACHERS. INTERMEDIATE TEACHERS HIGH SCHOOL TEACHERS. AND FOR THE TOTAL OF THE THREE. Salary 1600 1500 1400 1"500 1200 ^"1 Elementary Intermediate High School Total for all teachers salaries for elementary teachers of $359 or 46 per cent (between B and E). In connection with the salaries paid in the 392 cities, as shown in the preceding tables, comparisons with those paid in New York City for the same period are valuable. A distribution was made from the salaries as recorded in the "Tentative Budget Estimate for 1919 of the Board of Education of the school district of New York, N. Y." which was adopted August 29, 1918, and so represents the salaries for the TEACHERS' SALARIES AND SALARY SCHEDULES 23 TABLE IX Distribution of Salaries of Men and Women Teachers in the Day Elementary Schools of New York City for the School Year 1918-19. Salary Groups Men Women Totals S too- 849 67 2153 2220 i-sQ- 899 78 78 900- 949 5 2830 2835 9.S0- 999 1 748 749 1000-1049 57 533 590 1050-1099 1 755 756 1100-1149 17 567 584 1150-1199 82 82 1200-1249 125 666 791 1 '50-1299 1 701 702 1300-1349 23 621 644 1350-1399 383 383 1400-1449 -.9 596 645 1450-1499 14 14 150-1549 63 3737 3800 1550-1599 1 80 81 1600-1649 19 84 103 1650-1699 3i 105 138 1700-1749 51 100 151 1750-1799 1 20 21 1800-1849 91 1488 1579 1850-1899 1 453 454 1900-1949 14 52 66 1950-1999 31 55 86 200 -2049 9 1 10 20SO-20 9 12 47 59 2100-2149 52 3 55 2150-2199 32 32 2200-2249 1 1 2250-2299 31 3 34 2300-2349 1 1 2350-2399 2400-2449 547 4 551 2450-2499 2500-2549 2550-2599 2600-2649 2650-2699 1 1 Totals 1336 16.960 18,296 **Q1 $1438 § 936 $ 941 Med 'an " 2083 1255 1279 Q3 2420 1527 1536 Q 491 296 298 **For explanation of terms used see pages lo and ii. school year 1918-19. Tables IX and X give the distributions for men and for women in the day elementary schools and in the day high schools. The median salary for men in the elementary schools is over $800 more than the median salary for women. This is due to the double basis for granting salaries which, until recently, existed in New York City. The men are, however, such a small proportion of the total \number in the elementary schools that their higher salaries only raise the median for the entire group by .$24. The quartile deviation for the men is very large, due to the large number of men who have reacht the maximum of $2,400. and the relatively low salaries of the men who have entered since the "equal pay for equal work" plan was adopted. The median salary of $1,279 for New York City is $343 more than the median salary for all cities in this study 24 NATIONAL EDUCATION ASSOCIATION TABLE X Distribution of Salaries ol Men and Women Teachers n the Day High Schools of New York City for the School Year 1918-19. Salary Groups Men Women Totals $ 900- 949 11 18 29 950- 999 1000-1049 28 33 61 1050-1099 1200-1249 1250-1299 1300-1349 41 ■2 Ki 1350-1399 1400-1449 1450-1499 22 32 54 1500-1549 1550-1599 1600-1649 25 41 66 1650-1699 1700-1749 4 1 5 1750-1799 34 44 78 1800-1849 1850-1899 1900-1949 43 56 99 1950-1999 2000-2049 2050-2099 96 135 231 2100-2149 2150-2199 3 3 2200-2249 25 44 69 2250-2299 2300-2349 11 21 32 2350-2399 37 37 74 2400-2449 9 1 10 2450-2499 2500-2549 126 110 2i(> 2550-2599 2600-2649 2650-2699 308 485 793 2700-2749 2750-2799 2800-2849 2850-2899 2900-2949 4 4 2950-2999 3000-3049 30S.J-3099 3100-3149 3150-3199 96 27 123 3200-3249 3250-3299 1 1 Totals 932 1155 2087 *Q1 $2059 $1944 S2052 Median 2527 2520 2524 Q3 2679 2673 2675 Q 310 364 311 **For explanation of terms used see pages lo and ii. with more than 100,000 population, and is $423 (nearly V2) more than the median salary of the 392 cities reporting. There is not such a difference between the median salaries of men and women in the high school as is found between the salaries of elementary teachers. The median salary for men is only $7 more than that for women, and the quartile deviation is smaller by $45. The significant fact about the median high school salary in New York City is that it is $1,011 (67%) higher than the median high school salary for cities in Group I, and $1,300 (106%) higher than the median It.lLHhHS' S.lL.lNlhS AM) ^.U.JR) SCHEULLES 25 TABLE XI DISTRIBUTION OF SALARIES OF ELEMENTARY TEACHERS IN NEW YORK. PITTS- BURGH AND NEWARK. COMPARED WITH TWO OTHER GROUPS OF CITIES 1 2 3 4 5* 6 7 Salary Groups New Pitts- Total Total Total Totals York burgh Newark for 29 392 for City 1, 2 & 3 Cities Cities 4, S &6 $200- 249 10 10 250- 299 300- 349 176 176 350- 399 104 104 400- 449 34 190 224 450- 499 6 447 453 500- 549 102 743 845 550- 599 4 4 120 1317 1441 600- 649 3 3 239 . 1935 2177 650- 699 222 2041 2263 700- 749 294 94 388 349 2772 3509 750- 799 71 22 93 Ml 3150 3580 800- 849 2220 76 171 2467 326 3115 5908 850- 899 78 66 68 212 287 2225 2724 900- 949 2835 41 105 2981 519 3260 6760 950- 999 749 58 79 886 422 1942 3250 1000-1049 590 180 65 835 601 1922 3358 1050-1099 756 58 53 867 495 987 2349 1100-1149 584 734 87 1405 232 1595 3232 1150-1199 82 19 1 102 166 1074 1342 1200-1249 791 244 103 1138 383 1056 2577 1250-1299 702 702 72 943 1717 1300-1349 644 4 475 1123 448 202 1773 1350-1399 383 383 6 634 1023 1100-1449 645 3 69 717 18 525 1260 1450-1499 14 14 8 8 30 150.0-1599 3881 12 175 4068 1 41 4110 1600-1699 241 32 69 342 7 50 399 1700-1799 172 14 186 2 16 304 lSOO-1899 2033 48 2081 12 2093 1900-1999. 152 2 154 4 158 2000-2099 69 2 71 1 72 2100-2199 87 87 1 88 2200-2299 35 35 1 36 2300-2399 1 1 1 2400-2499 551 551 551 2500 2999 1 1 1 3000-and over. Totals 18296 1896 1705 21897 5412 32499 59808 **Qi S 940 S 872 S 933 S 939 $ 792 $ 721 S 802 Median 1283 1107 1300 1231 969 856 948 Q3 1568 1139 1345 1552 1100 1025 1222 *For list of these 29 cities see those marked with a **For explanation of terms used see pages 10 and 11. in Appendix I. salary for all high school teachers in 392 cities. In order to have some results of this study available to school men by the close of the school year it was found necessary to close the tables before the returns were received from Pittsburgh, Pa., and Newark, N. J. Since they are both large industrial cities in Group A, Size I, their distributions have been combined with those of New York in order that they may be compared not only with the returns from the 392 cities previously reported, but also with a summary of 29 other cities^ whose replies were received too late to be incorporated in the main study. 1 The 20 cities included in this distribution arc starred * in the list in Appendix 1 . 26 NATIONAL EDUCATION ASSOCIATION TALBE XII DISTRIBUTION OF SALARIES OF HIGH SCHOOL TEACHERS IN NEW YORK, PITTS- BURGH AND NEWARK, COMPARED WITH TWO OTHER GROUPS OF CITIES 1 2 3 4 5* 6 7 Salary Groups New Pitts- Total Total Total Totals York burgh Newark for 29 392 for City 1, 2 & 3 Cities Cities 4. 5 &6 $ 200- 249 250- 299 300- 349 4 4 350- 399 2 2 400- 449 4 4 450- 499 7 7 500- 549 4 4 16 20 550- 599 3 3 2 10 1.5 600- 649 1 4 5 2 41 48 650- 699 1 1 7 76 84 700- 749 1 1 8 161 170 750- 799 1 1 27 232 260 800- 849 1 1 27 407 435 850- 899 20 342 362 900- 949 29 2 3 34 48 630 712 950- 999 27 383 410 1000-1049 61 8 1 70 90 910 1070 1050-1099 49 326 375 1100-1149 18 1 19 99 379 497 1150-1199 60 266 326 1200-1249 5 6 11 133 627 771 1250-1299 1 1 56 269 326 1300-1349 93 11 8 112 132 371 615 1350-1399 1 1 47 290 338 1400-1449 16 12 28 123 436 587 1450-1499 54 54 28 171 253 1500-1599 18 21 39 146 643 828 1600-1699 66 39 13 118 202 585 905 1700-1799 83 36 1 120 . 33 313 466 1800-1899 38 18 56 71 469 596 1900-1999 99 40 3 142 25 292 459 2000-2099 231 26 10 267 5 133 405 2100-2199 3 32 10 45 4 83 132 2200-2299 69 23 24 116 44 160 2300-2399 106 17 12 135 2 18 155 2400-2499 10 59 11 80 37 117 2500-2999 1033 64 1097 11 1108 3000-and over. 124 18 142 2 144 Totals 2061 391 251 2703 1473 8990 13166 **Q1 $2013 SI 643 SI 580 SI 894 S1132 S991 $1035 Median 2512 1904 2215 2376 1332 1224 1357 Q3 2562 2205 f 2530 2551 1583 1559 1790 *For list of these 29 cities see those marked with a **For explanation of terms used see pages :o and 11, in Appendix I. Table XI for elementary teachers shows the median salary for Pittsburgh to be $1,150, and for Newark $1,300. A total for these 3 cities gives a median of $1,231. This is $262 higher than the median salary for elementary teachers in the 29 cities mentioned above, and $375 higher than the median salary in the 392 cities. The distribution of the 59,808 elementary teachers, which is the total for all cities in the report, including New York City, gives a median salary of $948. The difference between this and $856 for the 392 cities studied is largely the effect of including the New York City teachers in the dis- tribution, and gives a median salary much too high to represent actual conditions as they are. TEACHERS' SALARIES AND SALARY SCHEDULES 27 Table XII gives a similar distribution for high school teachers, and shows the median salary for New York, Pittsburgh and Newark to be $2,376, \\hich is $1,044 more than the median salary for the 29 cities, and $1,152 more than the median salary for the 392 cities. The median salary for the total distribution for all cities, including New York, is $i,357, due again largely to the salaries of the 2000 New York high school teachers for whom the median salary is more than $2,500. The differences between salaries in different city groups and in different sections, as evidenst by the above tables, are relatively very small in comparison with the differences existing between individual cities. Included in the distributions are the following cities paying their elementary teachers a median salary of $1,300 or more: Newark, New Jersey, $1,300; Anaconda, Montana, $1,301 ; Berkeley, California, $1,310; Oakland, California, $1,359; Cleveland Heights, Ohio, $1,413; Seattle, Washington, $1,421. Included in the distribution also are cities paying medium salaries of less than half of these figures, — $540, $532, $519, and $SSS are actual median salaries paid to elementary teachers in cities and towns of over 5000 population. The difference between cities in the matter of median salaries for high school teachers is much more than between elementary teachers, varying between New York City, with its median of $2,500, to some of the small high schools, paying median salaries of about ^4 of this. A study of the distributions of salaries for elementary and high school teachers for individual cities will convince anyone that the settlement of the salary problem up to the present time has been purely a matter of local adjustment, the result of a progressive superintendent, of an active teacher's organization or the recognition of the importance of teaching by a group of progressive citizens within a community. There is no evidence within any city size or geographical group of a united attempt to in any way standardize salaries paid, or to make a general adjust- ment of teachers' salaries to living conditions. "What increases in salary were granted to each group this year?"* was the next question askt on the questionnaire to superin- tendents. A distribution of the teachers receiving increases, regard- less of the amount of the increase, arranged according to the salaries of the teachers receiving these increases, results in the following quar- tile distributions. A comparison of the medians and the median deviations of the salaries of teachers receiving increases with the medians and median deviations of the actual salary distributions as given in Tables I-VIII, inclusive, and summarized in Table XIII, will show : first, that the median salaries of those receiving increases are in most cases slightly ^ For copy of questionnaire see insert after jiage 7. 28 NATIONAL EDUCATION ASSOCIATION TABLE XIII gi'ARTlLE DISTRIBUTIONS OF SALARIES OF TEACHERS RECEIVING INCREASES DURING 1918-19. CArranged according to Size and Geographical Groups* for Elementary, Intermediate and High Schoo' Teachers) Size Groups I II III IV V VI Totals Elementary No .of Teachers 9637 2983 4792 4299 1766 1968 25445 '*Q1 $ 808 S 754 $ 758 $ 622 $ 563 $ 634 $ 702 iMedian 902 893 874 781 672 693 844 Q3 1184 1031 1006 920 791 782 1013 Q 188 139 124 129 114 74 156 latermediate No. of Teachers 953 176 374 404 355 286 2548 **Q1 S 773 $ 789 S 917 % 802 S 670 S 651 $ 804 Median 796 980 1030 950 773 734 876 Q3 1074 1058 1083 1100 853 829 1047 Q 151 135 83 149 92 89 122 High School No. of Teacliers 2481 822 1344 1367 709 839 7562 *Q1 $1120 $1105 $1046 $ 932 $ 858 $ 818 $ 982 Median 1469 noA 1260 1092 904 916 1210 Q3 1741 i5i<; 1525 1352 1105 1037 1520 Q .Sll 207 240 210 124 110 269 Geographical Groups A B C D E Total Elementary No.'of Teachers 7723 5775 4246 3196 4505 25445 **Q1 $ 690 S 693 S 685 $ 779 $ 940 $ 702 Median 808 796 811 917 1154 844 Q3 943 886 971 1088 1302 1013 Q 132 97 143 155 181 156 Intermediate No. of Teachers 662 910 457* 255 264 2548 **Q1 $ 799 $ 809 S 759 $ 849 $ 845 $ 804 Median 1005 831 871 936 970 876 Q3 1142 945 1049 1309 1084 1047 172 68 145 230 120 122 High School No. of Teachers 2141 1319 1410 1141 1551 7562 **Q1 S 942 % 955 $ 923 S 948 $1336 $ 982 Median 1128 1025 1124 1156 1533 1210 Q3 1369 1243 1436 1560 1783 1520 Q 214 144 257 306 224 269 *For explanation of size and geographica groups see pages 9. **For explanation of terms used see pages lo and ii. below the median salaries of the groups, and second, that the quartile deviation is very nearly the same as in the distribution of the salaries received. The fii'st point v\-ould indicate that there is a tendency to give increases to tb.e lower salaried teachers more than to the upper, but this tendency is so slight that it hardly deserves the name even of a tendency. The second fact seems to contradict this conclusion by showing tint increases are given over the entire range of salaries. It was also observed in examining the superintendents' blanks as they were returned, that where any increases were given they were generally gi\'(n to all teachers. When any teachers were not given increases the}- were usually ''new teachers." .\. stud}' of the increases given to teachers during 1918-19 which bears more directly upon the salary question is the amount of the in- TEACHERS' SALARIES AMD SALARy SCJIEDLJ.liS 29 TABLE JXIV INCREASES TO ELEMENTARY TEACHERS- SALARIES GRANTED FOR 1918-19 IN THE 392 CITIES REPORTING. (Distributed according to size of city and amount of increased received.)* Number of teachers ■ ti each ^ze group Si/ie of Increases I II II' I\' \' \'I Tot.ds S 0-S "^'.99 99 21 390 265 64 270 1109 10- 19.99 10 16 26 20- 29.99 195 277 52 48 572 30- 39.99 8 80 158 25 271 40- 49.99 178 258 2 70 388 342 244 1680 SO- 59.99 3139 181 469 494 139 438 4860 60- 69.99 271 91 489 97 113 10)1 70- 79.99 1152 135 489 386 258 109 2529 80- 89.99 155 217 • !I20 12 28 432 90- 99.99 405 69 394 139 245 176 1429 100- 109.99 1762 637 804 868 171 256 4498 110- 119 99 39 87 51 9 12 198 120- 129.99 685 216 159 302 2 7 44 14S3 l.?0- 139.99 76 58 50 47 37 268 140- 149,99 118 35 64 38 9 264 150- 159.99 422 350 215 224 68 101 1380 160- 169.99 223 20 5 8 256 170- 179.99 "is 48 14 8 118 180- 189.99 134 20 11 165 190- 199.99 276 44 5 1 326 200- 209.99 394 181 202 6 2 1 10 794 210- 219.99 15 17 220- 229.99 56 15 9 4 84 230- 239.99 13 13 240- 249.99 45S 141 5';9 250- 259.99 9!) 22 27 139 260- 269.99 2 27 29 270- 279.99 432 9 441 280- 289.99 290- 299.99 300- 3,-9.99 II 16 27 310- 319.99 320- 329.99 79 79 330- 339 99 340- 349.99 5.^ 53 350- 359.99 5 5 360- 369.99 •370- 379.99 266 266 380- 389.99 1 1 390- 399.99 11 11 400- 409.99 8 8 480- 489.99 500- 509.99 1968 S 45 Totals 9637 2983 4792 4299 1766 25445 **Q1 S 57 S 71 S 57 S 51 S 45 S 5:, Median 106 106 101 74 71 59 91 Q3 127 152 !,S6 10.3 98 100 123 Q 35 41 50 29 27 28 59 *For explanaiion of size groups see page 9. **For explanation of terms used see pages 10 and 11. creases given. Tables XIV-XIX, inclusive, give the distribution of the increases to teachers' salaries granted tor 1918-19 in the 392 cities reporting. The distribution is made according to size and geographical groups for the cities and the amount of the increase received. These tables show that the increases received during the preseni 30 SATIUNAL EDUCATION ASSOC! AT J UN TABLE XV INCRE.\SES TO INTERMEDIATE TEACHERS' S.'\L.\RIESGR.\NTED FOR 1918 19 IN THE 392 CITIES REPORTING (Distributed according to size of --ity a-^d amount of increase received.)* 1 Number of teachers in eacii size croup Size of Increases I II III IV V VI Totals $ 0-$ 9.99 10- 19.99 20- 29.99 30- 39.99 40- 49.99 SO- 59.99 60- (',9.99 70- 79.99 80- 89.99 90- 99.99 100- 109. t.9 652 2 79 3 2 27 8 -19 12 4 81 29 14 9 8 18 192 42 29 4 22 55 15 23 3 27 42 29 7 8 10 54 31 13 52 5 57 34 80 1 5 7 12 61 U 17 5 24 10 835 8 42 16 90 190 47 120 33 209 359 110- 119.99 120- 12C.99 130- 139.99 140- 149.99 150- 159.99 160- 169.99 170- 179.99 180- 189.99 190- 199.99 200- 209.99 58 10 10 10 4 31 1 3 9 7 22 4 36 7 2 5? 2 1 12 4 1 17 14 9 7 1 2 3 2 16 12 I 3 11 113 37 11 151 6 10 23 11 36 210- 219.99 220- 229.99 230- 239.99 240- 249.99 250- 259.99 260- 269.99 270- 279.99 280- 289.99 290- 299.99 300- 309.99 122 1 14 5 3 4 10 4 1 2 1 1 1 20 6 rs 11 122 1 310- 319.99 320- 329.99 330- 339.99 340- 349 99 350- 359.99 360- 369.99 370- 379.99 380- 389.99 390- 399.99 400- 409.99 1 1 10 1 1 10 480- 489.99 500- 509.99 Totals 953 176 374 404 355 286 2543 **Q1 Median Q3 Q $ 98 $ 72 102 107 18 $101 106 152 26 $ 51 93 130 40 $ 46 75 100 27 $ 57 98 49 $ 74 109 55 *For explanation of size groups see page 9. **For explanation of terms used see pages 10 and 11. year in these 392 cities vary from "no increase" to $400 for elementary and intermediate teachers, and to $500 for high school teachers. The increases most frequently received, as shown by the number of teachers receiving them, are "no increase," $45, $50, $75, $90, $100, $125 and $150 for elementary and intermediate teachers, and the same, but with $200 and $300 added for the high schools. These amounts are ex- plained by the practice of giving increases of $5 and $10 per month. lEACHERS- SAL.iKlES ASD SALARY SCHEDILES .il TABLE XVI INCREASES TO HIGH SCHOOL TEACHERS' SALARIES GRANTED FOR 1918-19 IN THE 392 CITIES REPORTING (Distributed according to size of city and amount of increase received.)* Number of teachers in each size group Sizr o"^ Increases I II III IV \' VI Totals S 0-S 9.<-9 457 38 116 151 153 227 1142 10- 19.99 12 12 20- 29.99 4 1 7 7 19 30- 39.99 1 y 9 5 17 40- 19.99 78 92 64 141 87 67 529 SO- 59.99 185 61 108 121 64 86 625 60- 69.99 4 83 11 11 109 70- 79.99 100 57 166 57 29 52 461 80- 89.99 47 25 16 U 23 122 90- 99.99 7 16 102 69 97 84 375 100- 109.99 . 707 ♦ 168 306 375 125 98 1779 110- 119.99 5 9 10 3 27 120- 129.90 i67 102 61 25 7 15 677 130- 139.99 36 11 27 30 104 140- 149.09 15 14 12 1 42 ISn- 159.99 105 25 101 38 29 298 160- 169.99 1 11 5 17 170- 170.99 10 9 10 12 1 41 180- 189.99 7 10 19 36 190- 199.90 27 3 6 2 4 42 200- 209.09 92 78 78 41 11 25 325 210- 219.99 1 4 4 9 220- 229.99 8 4 3 8 23 230- 239.99 1 3 1 1 16 240- 249.99 111 1 4 116 250- 259.99 12 6 1 2 21 260- 26^.99 9 2 11 2.0- 279.99 65 6 7 1 79 280- 289.99 5 4 8 2 19 290- 299.99 2 7 1 10 300- 309.99 Hi 9 28 13 373 310- 319. 9y 4 1 5 320- 329.99 6 5 11 330- 339 99 4 4 340- 349.99 6 1 7 350 359.99 2 2 5 9 .560 369.99 10 10 370- 379.9 ' 380- 389.99 7 7 390- 399.99 1 I 400- 409.99 20 20 480- 489.99 1 1 500- 509.99 2 4 2 8 TotaI= 2481 822 1344 1367 709 839 7562 **Q1 S 55 $ 72 $ 72 $ 54 $ 47 $ $ 53 Median 106 106 103 101 78 71 102 Q3 127 152 148 120 105 106 127 Q 36 40 38 38 29 53 37 *For explanation of size groups see page g. **For explanation of terms used see pages lo and ii. which amounts to the $45, $50, $go and $100 increases as the term is nine or ten months in length, and by the practice of giving "lump sum"' increases of $50, $75, $100, $125 and $150, etc.. per year. These tables ;ilso show that the size of the city again has a direct effect, and that there is a markt tendency for the "increase" to be less in the smaller cities. It is also noticeable that the geographical groups which pay the highest salaries pay slightly higher increases, altho there are several 2>2 NATIONAL EDUCATION ASSOCIATION TABLE XVII INCREASES TO ELEMENTARY TEACHERS' SALARIES GRANTED FOR 1918-19 IN THE 302 CITIES REPORTING (Distributed according to geograph.cal grouping and amount of increase received.)* Number of teachers in each geographical group Size of increases 1 A B C D E Total . $ 0-S 9.99 273 326 114 178 218 1109 10- 19.99 10 14 2 26 20- 29.99 113 54 191 166 48 ! 572 30- 39.99 99 45 28 13 86 271 40- 49.99 263 491 287 183 456 1680 50- 59.99 1665 1763 377 794 261 4860 60- 69.99 154 441 140 180 146 1061 70- 79.99 754 606 325 71 773 2529 80- 89.99 332 30 45 6 19 432 90- 99.99 322 454 265 302 86 1429 100-109.99 1505 861 1073 • 599 460 4498 110-119.99 142 12 27 9 8 198 120-129.99 349 21 '73 22 868 1433 130-139.99 143 33 46 29 17 268 140-149.99 110 66 66 22 264 150-159.99 672 431 260 5 12 1380 160-169.99 6 1 50 42 157 256 170-179.99 8 37 30 43 118 180-189.99 40 10 15 94 6 165 190-199.99 1 2 3 320 326 200-209.99 330 1 422 41 794 210-219.99 2 15 17 220-229.99 60 20 4 84 230-239.99 13 13 240-249.99 134 7 458 599 250-259.99 90 48 1 139 260-269.99 27 2 29 270-279.99 432 4 5 441 280-289.99 290-299.99 30-309.99 16 11 27 310-319.99 320-329.99 79 79 330-339.99 340-349.99 53 53 350-359.99 5 5 360-369.99 370-379.99 266 266 380-389.99 1 1 390-399.99 11 11 400-409.99 8 8 480-489.99 500-509.99 Totals 7723 5775 4246 3196 4505 25445 **Q1 $ 57 $ 53 S 65 $ 53 $ 64 $ 56 Median 96 65 103 80 103 91 Q3 125 102 151 108 129 123 Q 34 25 i 431 28 33 59 *For explanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. irregularities. A study of the median increases will show that they hover around $ioo — ahout as many teachers receive less than $ioo as receive more. Exceptions to this are Groups B and D of the geographical groups ; and Group I for intermediate teachers. Group IV for elementary and Groups V and Yl of the size groups for all teachers. In these groups the median increases are lower than $ioo. The quartile deviations would indicate that the middle fifty TEACHERS' SALARIES AND SALARY SCHEDULES ii TABLE XVin INCRE.'XSES TO INTERMEDIATE TEACHERS' SALARIES GRANTED FOR 1918-19 IN THB 392 CITIES REPORTING. (Distributed according to geographical grouping and amount of increase received.)* Size of Number of teachers in each geographical group Increases A B C D E Totals $ 0-S 9.99 10- 19.99 20- 29.99 30. 39.99 40- 49.99 50- 59.99 60- 69.99 70- 79.99 80- 89.99 90- 99.99 100-109.99 80 7 16 4 9 64 IS 47 8 29 100 681 2 30 16 12 20 14 93 3 24 6 78 8 41 11 12 180 13 1 24 2 25 4 7 36 12 37 10 20 28 12 39 64 835 8 42 16 90 190 47 120 5i 209 359 110-119.99 120-129.99 130-139.99 140-149.99 150-159.99 160-169.99 170-179.99 180-189.99 190-199.99 200-209.99 1 13 4 126 3 2 11 14 4 1 4 12 4 6 12 9 15 17 3 63 7 1 1 4 3 9 7 8 1 25 12 1 5 1 11 113 37 11 151 6 10 23 11 36 210-219.99 220-229.99 230-239.99 240-249.99 250-159.99 260-269.99 270-279.99 280-289.99 290-299.99 300-309.99 1 122 2 4 10 1 15 S 3 1 2 1 1 1 20 6 3 4 11 122 1 310-319.99 320-329.99 330-339.99 340-349.99 350-359.99 360-369.99 370-379.99 380-339.99 390-399.99 400-409.99 1 1 10 1 1 10 **480-4R9.99 500-509.99 Totals 662 910 457 255 264 1 2549 **Q1 Median Q3 $ 58 105 158 50 $ 21 $ 68 103 109 21 $ 50 90 100 25 $ 50 SO 95 74 100 109 25 55 *For explanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. per cent are ecisily included between $50 and $150. The median increases for the groups — $91 lor elementary, $74 for intermediate and $102 for high school teachers for the year 1918-19 are rather condemning evidence, that in a great majority of the cases, the in- creases were given without regard to the needs of the teachers. Dur- ing 1918 the cost of living advanst 25% ^ and remained nearly 1 "Monthly Review" — Bureau of Labor Statistics — January 1919 — page 100. 34 NATIONAL EDUCATION ASSOCIATION TABLE XIX INCREASES TO HIGH SCHOOL TEACHERS' SALARIES GRANTED FOR 1918-19 IN THE 392 CITIES REPORTING. (Distributed according to geographica' grouping and amount of increase received.)* Size of Number of teachers in each geographical group Increases A B C D E Totali $ 0-S 9.99 10- 19.99 20- 29.99 30- 39.99 40- 49.99 50- 59.99 60- 69.99 70- 79.99 80- 89.99 90- 99.99 100-109.99 235 8 1 49 273 24 152 57 93 638 519 2 2 174 44 23 13 9 37 379 172 1 4 105 62 4 44 18 95 415 93 12 4 1 190 182 26 [62 1 9 98 49 123 4 9 11 64 32 190 29 52 298 1142 12 19 17 529 625 109 461 122 375 1779 110-119.99 120-129.99 130-139.99 140-149.99 150-159.99 160-169.99 170-179.99 180-189.99 190-199.99 200-209.99 8 128 17 10 151 4 13 9 1 107 8 5 12 4 6 3 4 10 3 7 5 20 18 6 109 5 18 10 6 115 242 43 21 9 4 2 2 29 5 6 282 14 1 23 1 5 5 3 91 27 677 104 42 298 17 42 36 42 325 210-219.99 220-229.99 230-239.99 240-249.99 250-259.99 260-269.99 270-279.99 280-289.99 290-299.99 300- '.09.99 2 9 32 2 5 66 2 33 4 2 10 1 4 1 6 * 2 1 8 2 77 9 1 4 6 1 32 3 3 5 6 4 3 9 7 5 2 1 1 1 301 9 23 16 116 21 11 79 19 10 373 310-319.99 320-329.99 330-339.99 340-349.99 350-359-99 360-369.99 370-379.99 380-389.99 390-399.99 400-409.99 1 2 1 7 1 4 5 5 3 1 1 4 9 17 1 4 4 4 5 11 4 7 9 10 7 1 20 480-489.99 500-509.99 4 1 2 2 1 8 Totals 2141 1319 1410 1141 1551 7562 **Q1 Median Q3 Q $ 58 104 129 36 $ 48 104 52 $ 71 105 158 44 $ 49 81 129 40 $ 78 109 201 67 $53 102 127 37 *For explanation of geographical groups see page 9. **For explanation of terms used bee pages lo and ii. stationary during the remainder of the school year. More demands were made upon teachers' time and resources, and yet more than half of them received less than $ioo increase for the year. One of the effects of the war on teaching was the pronuunst short- age of teachers. This was as responsible as an\' other one element for calling the attention of educators to the "Emergency in Education." To find, if possible, the effect of low salaries on teachers leaving was lEACHERS' SALARIES AND SALARY SOHEDL^LES 35 TABLE XX SUMMARY TABLE OF THE NUMBER OF TEACHERS WITHDRAWING FROM EACH SALARY LEVEL DURING THE YEAR 1918-19 IN THE 392 SCHOOL SYSTEMS REPORTING (Schoo' systems aie arranged according to the -ize of the cities.^* Salary I II III IV V VI Totals Groups $200- 249 250- 299 300- 349 1 1 20 1 23 350- 399 1 3 4 400- 449 3 4 4 11 450- 499 4 1 10 16 21 4 56 500- 549 5 5 20 27 6 63 550- 599 5 2 7 19 25 31 69 600- 649 7 2 12 44 46 24 135 650- 699 26 4 14 46 43 28 161 700- 749 21 7 36 44 44 32 184 750- 799 96 5 31 30 23 12 197 800- 849 24 6 38 32 21 33 154 850- 899 20 7 21 34 14 34 130 900 949 3 5 37 39 29 25 138 950- 999 14 9 19 14 T 3 66 1000-1049 12 7 25 12 14 9 79 1050-1099 17 1 32 11 2 6 69 1100-1149 9 3 26 8 5 10 61 1150-1199 13 2 13 9 1 s 41 1200-1249 4 6 20 11 3 2 46 1250-1299 14 2 4 3 1 1 25 1300-1349 2 2 9 13 3 6 35 1350-1399 11 4 3 2 3 23 1400-1449 2 4 5 5 1 17 1450-1499 3 1 2 3 2 11 1500-1 -99 8 1 3 6 3 6 27 1600-1699 5 2 10 5 22 1700-1799 6 1 1 3 11 1800-1899 2 2 2 1 7 1900-1999 2 2 1 5 2000-2099 210U 2199 2200-2299 1 1 2300-2399 2400-2 i99 1 1 2500-2999 3000-up Totals 33i 86 390 432 363 289 1892 **Q1 $ 760 $ 755 $ 765 $ 660 $ 573 $ 647 $ 679 Median 811 940 923 851 695 817 808 Q3 1096 1011 1129 1123 846 908 1010 * For explanation of size groups see page 9. **For explanation of terms used see pages lo and ii. the reason for asking the last two questions of Part I of the ques- tionnaire to superintendents. Only 288 superintendents of the 392 replied to these questions, but the replies are evenly distributed thru the groups so that the returns are quite truly representative of the cities involved in the study. Tables XX and XXII show that the salaries of teachers withdraw- ing during the year spread over nearly as wide a range as was found for the distribution of the salaries received. This indicates that teachers were drawn from all salary levels, which has two probable implications ; one, that there was need for teachers of more ability, which would draw the better paid ones, and the second implication, that even the better paid salaries in teaching were still too low to hold 36 NATIONAL EDUCATION ASSOCIATION TABLE XXI SUMMARY TABLE OF THE NUMBER OF TEACHERS WITHDRAWING FROM EACH SALARY LEVEL IN ORDER TO ENTER SOME OTHER FIELD OF WORK DURING THE YEAR 1918-19 IN THE 392 SCHOOL SYSTEMS REPORTING. (School systems are arranged according to the size of the cities.)* Salary I II III IV V VI Total Groups $ 200- 249 250- 299 300- 349 1 14 15 350- 399 1 2 3 400 449 2 2 4 450- 499 2 1 4 11 11 1 30 500- 549 4 9 11 5 29 550- 599 2 2 1 6 6 18 35 500- 649 4 S 3 14 13 16 55 650- 699 7 4 3 20 9 13 56 700- 749 10 4 11 16 13 20 74 750- 799 80 1 13 12 5 7 118 800- 849 6 2 15 13 12 14 62 850- 899 5 4 6 17 4 14 50 900- 949 2 13 13 10 8 46 950- 999 3 5 3 7 1 19 1000-1049 6 1 5 3 7 4 26 1050-1099 9 10 4 1 3 27 1100-1149 3 1 8 5 1 3 21 1150-1199 8 4 4 1 17 1200-1249 1 6 6 2 15 1250-1299 6 1 2 2 1 1 13 1300-1349 1 7 1 2 11 1350-1399 1 3 1 1 1 7 1400-1449 1 5 2 1 9 1450-1499 2 1 2 2 7 1500-1599 1 2 3 1 1 8 1600-1699 1 6 4 11 1700-1799 2 1 2 5 1800-1899 1 1 1900-1999 2 1 1 4 2000-2099 1 1 2100-2199 2200-2299 2300-2399 2400-2499 2500-2999 3000-up Totals 164 40 128 182 128 137 779 **Q $ 759 % 630 $ 781 $ 664 $ 523 $ 626 % 671 Median 785 750 927 812 689 734 788 Q3 1017 960 1144 989 850 874 1910 *For explanation of size groups see page 9. **For explanation of terms used see pages lo and ii. people of markt ability under the keener competition which developt during the period of the war. Tables XXI and XXIII show the importance of the second cause mentioned, since 41 per cent of the\ teachers who withdrew from any school system during the year did so to enter some other field of work. It will be noticed in all of these distributions of teachers withdrawing that the medians are lower than the corresponding medians for the same groups in Tables IV and VIII, which give the distribution of salaries for all teachers for the same year. The best direct measure of the effect of low salaries on teachers withdrawing which can be obtained from the data assembled would be to know how many of the teachers withdrawing were from the TEACHERS' SALARIES AND SALARY SCHEDULES 37 TABLE XXII SUMMARY TABLE OF THE NUMBER OF TEACHERS WITHDRAWING FROM EACH SALARY LEVEL DURING THE YEAR 1918-19 IN THE 392 SCHOOL SYSTEMS REPORTING. (School systems are arranged according to geographical groupings.)* Salary A B C D E 1 Total Groups ' $ 200- 249 250- 299 300- 349 5 18 23 350- 399 1 3 4 400- 449 4 5 2 11 450- 499 10 29 IS 2 56 500 549 1^ 30, 18 14 1 63 550- 599 g- 31 25 25 8 89 600- 649 £ 66 27 31 7 4 135 650- 699 i 53 48 26 20 14 161 600- 749 5 63 22 42 18 39 184 750- 799 i 38 91 39 IS 14 197 800 849 j 48 13 18 44 31 154 850- 899 30 11 39 30 20 130 900- 949 45 5 33 . 26 29 138 950- 999 22 5 8 11 20 66 1000-1049 37 5 10 13 14 79 1050-1099 13 8 18 3 27 69 1100-1149 24 2 9 5 21 61 1150-1199 8 6 6 2 19 41 1200-1249 14 5 11 4 12 46 1250-1299] 8 3 3 11 25 1300-1349 12 5 9 1 8 35 1350-1399 3 3 4 13 23 1400-1449 3 8 2 4 17 1450-1499 3 3 5 11 1500-1599 5 1 2 1 18 27 1600-1699 5 1 3 13 22 1700-1799 4 1 6 11 1800-1899 2 2 3 7 1900-1999 1 3 1 5 2000-2099 2100-2199 2200-2299 1 1 2300-2399 2400-2499 1 1 2500-2999 3000-up Total 589 358 380 218 347 1892 **Q1 $ 649 S 583 S 669 S 740 $ 825 $ 679 Median 787 714 797 841 1009 808 Q3 1 978 970 919 932 1234 1010 *For explanation of geographical groups see page 9. **For explanation of terms used see pages lo and ii. poorer paid half of the teachers, in other words, from the teachers receiving below the median salary in the different groups. Tables XXIV and XXV^ give these data for the size groups and the geographi- cal groups. It will be notisl in every group, whether for size or location, that 50 per cent or more of the teachers withdrawing received less than the median salary for the group, with an average of 66% for all teachers studied. In other words, two out of each three teachers who left teaching during this year received less than the median salary of $917. When the percentages are computed for those who left teaching in order to enter some other line of work tlK>y run in the majority of cases a little higher than the figures above, with a 873!) ;j 38 X ATI ON A L EDUCATION ASSOCIATION TABLE XXIII SUMMARY TABLE OF THE NUMBER OF TEACHERS WITHDRAWING FROM EACH SALARY LEVEL IN ORDER TO ENTER SOME OTHER FIELD OF WORK DURING THE YEAR 1918-19 IN THE 392 SCHOOL SYSTEMS REPORTING. (Schoo. systems are arranged according to geographical grouping)* Salary A B C D E Total Groups . $ 200- 249 250- 299 300- 349 3 12 15 350- 399 3 3 400- 449 4 4 450- 499 5 18 7 30 500- 549 13 11 5 29 550- 599 16 10 5 4 35 600- 649 22 14 14 3 2 55 650- 699 IS 17 11 8 5 56 700- 749 25 10 17 9 13 74 750- 799 11 80 19 4 4 118 800- 849 22 6 12 IS 7 62 850- 899 11 5 11 14 9 50 900- 949 9 2 11 13 11 46 950- 999 10 4 1 4 19 1000-1049 n' 4 2 4 S 26 1050-1099 6 3 9 1 8 27 1100-1149 3 2 5 4 7 21 1150-1199 2 5 1 1 8 17 1200-1249 4 3 1 2 S 15 1250-1299 4 3 2 4 13 1300-1349 1 5 2 3 11 1350-1399 1 3 3 7 1400-1449 2 4 1 2 9 1450-1499 1 2 4 7 1500-1599 1 1 1 S 8 1600-1699 3 1 1 6 U 1700-1799 2 1 2 5 1800-1899 1 1 1900-1999 1 3 4 2000-2099 1 t 2100-2199 2200-2299 2300-2399 2400-2499 2500-2999 3000-up Total 204 223 150 85 117 779 **Q1 $ 632 $ 559 $ 680 $ 735 $ 838 $ 671 Median 714 758 793 848 1035 788 Q3 955 793 903 926 1248 1019 *For explanr.tion of geographical groups see page 19. **For explanation of terms used see pages lo and ii. percentage for the total of 70%. This is rather conclusive evidence that the lack of adequate financial reward was one of the principal reasons for teachers leaving the profession. This question will be further discust in connection with the cost of living and teachers' salaries. The fact that the salaries of teachers are not high enough to offer anything of a career to ambitious men and women is undoubtedly one reason why teaching was one of the first occupations to suffer a threatening shortage under the increast demands for trained intel- ligence incident to the war. PART II OF QUESTIONNAIRE TO SUPERINTENDENTS The primary purpose of asking the questions contained in Part IT of the questionnaire to superintendents for elementary, intermediate TEACHERS' SALARIES AND SALARY SCHEDULES 30 TABLE XXIV TEACHERS LEAVING' AND "TEACHSRS LE WING FOR OTHER KIELDS OF WORK" DURING 1918-19 COMPARED WITH TH3 M'<;DI\N SAL\RY0F EACH SIZE GROUP OF CITIES FOR ALLTEACHSR^CELEMSNfrAR/. IN TERMSDIATE AND HIGH SCHOOL).* Size Groups No. of teacher in each group Median salary o" all teachers in each group | $1013 No. of teachers leaving each group during 1918-19** Median salary o teacher? leav ing during 1918 No. o" teachers leaving each group during 1918-19 to enter other work Median salary of teachers entering other work during 1918-19 Per cent of teachers leaving who received less than me- dian salary of group Per cent of teachers entering ther work who received less than median salary of group I n III 17461 4667 7744 $1013 S943 $ 28 1 ^33 86 390 $811 $940 $923 164 40 128 $785 $750 $27 67% 50% 51% 75% 72% 51% 6812 $814 432 $795 182 $812 57% 54% 3446 $750 363 $695 128 $689 63% 61% VI 3545 $741 289 $817 137 $734 44% 56% Total 43675 $917 1892 $808 779 $788 66% 70% *For explanation of size groups see page 9. **These figures include only the returns from the 288 cities answering this question. TABLE XXV •TEACHERS LEAVING" AND "TEACHERS LE.AVING FOR OTHER FIELDS OF WORK' DURING 1918-19 COMPARED WITH THE MEDIAN SALARY OF EACH GEOGRAPH- ICAL GROUP OF CITIES FOR ALL TEACHERS (ELEMENTARY. INTER- MEDIATE AND HIGH SCHOOL*). Geograaphicai Groups No. of teachers in each group .... Median salary for all teachers in each group No. of teachers leaving each group during 1918-19** Median salary of teachers leaving during 1918-19 No. of teachers leaving each group during 1918-19 to enter other work Median salary o teachers entering other work during 1918- 19 Per cent o teachers leaving who received less than median salary of group Per cent of teachers entering other work who received less than median salary of group $869 S714 66% 8825 $794 358 $714 223 $758 77% 76% 6959 $871 380 $797 150 $792 60%, 63% D 7801 $1015 218 $841 85 $848 86% «4% 7143 $1187 347 $1009 117 $1035 66% 69% Total 43675 $917 1892 $80S 779 $788 66% 70% ♦For explanation of geographical groups see page 9. **These figures nclude only the returns from the 288 cities answering this question. and high schools was to find the present condition of salary schedules for teachers in the cities of the United States, to find the living ex- penses as far as they could be judged by the one item of "board and room," and also to find the professional requirements demanded of teachers for election in the different school systems. The questions were askt in duplicate for each of the three divisions ; Set A for elementary schools. Set B for intermediate schools, and Set C for high schools, in order to adjust the blank to superintendents who had to report on one or more of these divisions, as well as to provide for an easy method of making distinctions between any two divisions. The 40 NATIONAL EDUCATION ASSOCIATION TABLE XXVI NUMBER OF MONTHS TN THE SCHOOL YEAR OF 1918-19 FOR ELEMENTARY SCHOOLS IN 3S6 CITIES REPORTING (Distributed according to number of months and s'ze of city )* Number of cifes in each sire group. Length of year in months I II III IV V VI Total 10 9 8 7K 14 1 2 17 2 7 18 112 13 35 14 383 1 231 10 431 3 1 1 49 9 683 3 3 156 47 171 6 5 1 Totals 17 26 42 88 81 132 386 % having 10 months % having 9K months % having 9 months % having less than 9 82 6 12 65 8 27 43 26 31 40 16 43 1 28 12 53 6 37 7 52 5 40 12 44 3 * For^explanation of size groups'see page 9. * One'city reportedjll months. 2 One city reported 9H months. ' One city reported 9% months. * Three cities reported 914 months Note: — Number of months reported for Intermediate Schools and High Schools were in almost all cases identical with the above questions have been tabulated separately, except Questions i, 6 and 7, where the answers were practically uniform for the different divisions. Each question as it pertains to the different divisions will be dis- cust in order thru the remainder of this chapter. Question i. — "How many months are these schools in session?" Table XXVI shows the number of months in the school year for the different cities. It is very gratifying to note that 40 per cent of the schools reporting remain in session for ten months, and that 52 per cent of the schools remain in session for longer than nine months. The percentage of schools reporting ten months of school decreases very rapidly as the size of the cities decreases, so that where we find 82% for cities in Group I it is as low as 28% in cities of Group V. On thci other hand, the percentages of cities having nine months of school increases as the size of the cities decreases, so that 12 per cent of the cities in Class I increases to 53 per cent in Group V. The 3 per cent of all the 386 cities reporting less than nine months of school is a further source of gratification. It is evident from this table that the length of school year is rapidly approaching ten months as a standard. State Superintendent W. F. Bond of Mississippi, states that "There is a tendency to put all such teachers on a twelve months' salary basis, giving them 30 days off during the year, and employing them for half time during the rest of the time the school is not in session to coach all those students that fail to pass the last session of work." On the other hand, some of the states are just passing laws making six months the minimum length of term, so that there is yet room for material i.mprovement in this respect thruout the country. lEACHERS' SALARIES A.\D SALARY SCHEDLLES 41 TABLE XXVII NUMBER OF CITIES HAVING ESTABLISHT SALARY SCHEDULES KOR ELEMENTAKN TEACHERS IN THE 365 CITIES REPORTING (Distributed according to size of cit es.)* Number of cities ir each size group I 1 III IV V V! Total Have establisht salary sched.le. . . . Have a "partial'" salary schedule . . . Have no establisht schedule i9 14' 3.S 4 692 18 433 1 331' 3 67» 237 4 1J4 Totals . . . 19 6 39 87 77 127 365 % having an estab- lished schedule. . . . 100% 88% 90% 79% 56% 45% 65% * For explanation of size groups see page 9. ' One city reports it; schedule as "obsolete . 2 Two cities reporc theii schedules as "obsolete". 3 Two cities report their schedules as "obsolete", one as "subject to change" and one as "going into effect for 1919-20." • Four cities report their schedules as "obsolete," two as "the state minimum ' one as the "State law -t- 25%, " and one as "State law + 10%." ' One city reports "irregular increase — no schedule." TABLE XXVIII NUMBER OF CITIES HAVING ESTABLISHT SALARY SCHEDULES FOR INTERMEDIATE TEACHERS IN THE 184 CITIES REPORTING (Distributed according to size of cities.)* Number of cities in each size group I II III IV V VI Total Have an establisht salary schedule. . . . Have a "partial" salary schedule. . . . Have no establisht salary schedule. . . . 10 6 1 12 4 27 12 27 24 30 31 112 72 Totals . . . 10 7 16 39 SI 61 184 % having establisht 100% 86% 75% 78% 53% 49% 61% *For exjilanalion of size groups see page 9. Question 2. — "Do you have an establisht salary schedule for ele- mentary school teachers ?" Tables XXVII, XXVIII and XXIX give the answers to this ques- tion from 365 of the superintendents who answered it. It will be observed that 65 per cent of the cities have schedules for elementary teachers, 61 per cent for intermediate, and 47 per cent for high school, which would seem to indicate a tendency to establish schedules for elementary teachers, more than for teachers in the other two divisions. In these tables it is obvious that the size of the city is a large deter- mining factor in whether or not they have establisht schedules. All the cities of Group I have schedules in all three divisions, and the percentage of cities having establisht schedules decreases rather uni- formly as the size of the city decreases. This is most noticeable in the lack of schedules for high school teachers in cities of Groups V and VI. Cities in Group I\\ which includes those having between 42 XATIOA'AL tDUCAl'lON ASSOCIATION TABLE XXIX NUMBER OF CITIES HAVING ESTABLISHT SALARY SCHEDULES FOR HIGH SCHOOL TEACHERS IN THE 337 CITIES REPORTING (Distributed according to size of cities.)* Number of cities in each size group. I II III IV \' VI Total Have an establisht salary schedule. . . . Have a "partial" salary schedule. . . . Have no establisht salary schedule. . . . 18 11 5 31 8 38 42 28 43 31 82 157 180 Totals . . . 18 16 39 80 71 113 337 % having establisht 100% 69% 80% 48% 39% 38 47% *For explanation of size groups see page 9. TABLE XXX MINIMAL SALARIES FOR ELEMENTARY TEACHERS IN 352 CITIES REPORTING (Distributed according to salary received and size of cities.)* Number of cities in each size group. Minimal salary I II III IV V VI Totals $250-$ 299 12 22 3 300- 349 11 1 350- 399 2' 1 3 2 8 400- 449 12 2 1 2 2 8 450- 499 3 3 95 15 16 46 500- 549 3 3 15 9 10 40 550- 599 21 1 4 14 14 19 54 600- 649 2 2 8 13 134 21 59 650- 699 1 3 5 8 5 10 32 700- 749 4 1 84 / 8 13 41 750- 799 3 1 1 4 2 5 16 800- 849 3 1 3 2 3 4 16 850- 899 1 3 7 5 11 900- 949 1 t 2 7 1 y 15 950- 999 1 1 1000-1049 1050-1099 1100-1149 1150-1199 1 1 Totals 19 18 44 83 77 111 352 Median $ 731 $ 600 S 650 $ 610 $ 570 $ 613 $ 614 % below 800 74% 89% 82% 86% 95% 89% 88% % below 500 11% 28% 16% 12% 29% 18% 19% •For explanation of size groups see page 9. ' For no experience; ' colored; ^ 2 year apprentice; * with experience; ' and bonus; paid same salary. « all 10,000 and 25,000 population, have almost as large a percentage with salary schedules as the groups of larger cities. The big drop in per- centage between Groups IV" and V would seem to indicate that cities below 10,000 population have not yet found it as expedient to establish salary schedules as the larger cities. Competition for teachers, regard- less of any set salary schedule, and particularly of a schedule of low salaries, is, in a great many cases, the determining factor in the election of teachers in the smaller cities. This will probably continue until a more adequate adjustment of salaries can be made between cities of lEACHERS' SALARIES A\D SALARY SCHEDLLES 4.> TABLE XXXI MINIMAL SALARIES FOR INTERMEDIATE TEACHERS IN 169 CITIES REPORTING (Distributed according to salary received and size of cities.)* Number of cities in each size group Minimal Salary I II III IV V VI Total $ 250- 299 1 1 300- 349 1 1 2 350- 399 1 1 400- 449 1 I 450- 499 1 2 4 6 13 500- 549 3 10 1 14 550- 599 2 4 2 8 600- 649 2 2 3 12 19 650- 699 1 2 1 2 6 4 16 700- 749 1 1 21 4 10 9 27 750- 799 2 2 1 4 2 11 800- 849 2 3 6 2 5 18 850- 899 2 2 4 4 12 900- 949 3 3 3 2 11 950- 999 2 3 1 6 1000-1049 1 1 1 3 1050-1099 1 1 2 1100-1149 22 1 3 1150-1199 1 1 Totals 9 6 20 35 49 50 169 Median $ 788 $ 800 $ 800 $ 813 $ 663 $ 700 $ 718 % below 800 55% 50% 50% 46% 88% 72% 67% % below 500 11% 0% 15% 6% 12% 12% 11% • For explanation of size groups see page 9. ' Women; ' Men. dilifercnt sizes, adjusting the salary to the dift'erence in the cost of living and the opportunities for advancement afforded. A number of the superintendents in answering Question 2 made note of the fact that salary schedules represent changeable standards, and that they were conscious of the fact that schedules establisht several years ago are at the present time "obsolete." A number also stated that revisions of schedules were under consideration at the present time, so that it is quite likely that the working schedules for 1919-20 will be materially higher than for the present year. Question 3. — "What is the minimal salary for elementary teachers?" Tables XXX, XXXI and XXXII give the distribution of the answers to this question for elementary, intermediate and high school teachers. In the establishment of the minimal salaries, it is noticeable that the size of the city does not have the effect that it has had on most of the other facts considered. Especially is this true in the elementary and intermediate sections. The range of minimal salaries is, as would be expected, much less than the range of salaries for the respective groups. There is, however, a very wide variation in this respect, since some cities have minimal salaries of $250 for elementary teachers, while one of the cities reporting started its teachers at $1,150. The range is as great for intermediate teachers, and is $150 more for high school teachers. This item is very noticeable when it is possible for a beginning high school teacher to enter one school system at $450 a 44 NATIONAL EDUCATION ASSOCIATION TABLE XXXII MINIMAL SALARIES FOR HIGH SCHOOL TEACHERS IN 333 CITIES REPORTING. (Distributed according to salary received and size of cities.)* Number of cities in each size group Minimal Salary I II III IV V VI Totals $ 450-$499 500- 549 550- 599 1 1 1 1 1 2 1 3 3 600- 649 c 1 1 a 3 3 8 16 * 650- 699 700- 749 a 1 d 2 a 1 a 2 2 1 5 o 10 8 12 6 19 23 46 750- 799 800- 849 850- 899 a 1 1 aa 2 1 6 1 a 6 6 5 a 4 11 13 1 a 10 ab 14 8 10 13 14 40 47 28 900- 949 1 a 3 7 aaaa 14 b 2 bb 7 7 9 41 950- 999 1000-1049 aabd 8 bb 5 6 1 6 2 1 4 b 4 2 3 5 11 29 1050-1099 1100-1149 1150-1199 1200-1249 1 2 ab 5 b 1 b 1 b 1 2 1 b 2 b 3 4 1 b 3 1 3 2 11 1 18 1250-1299 1 2 1300-134?) 1350-1399 1400-1499 1450-1499 1500-1599 1 3 2 b 1 1 1 6 1 1 3 Totals 26 20 44 77 71 95 333 Median % below 1000 % below 800 $1038 27% 19% $975 50% 25% $921 73% 27% $837 76% 38% $802 93% 49% $806 90% 48% $837 78% 40% *For explanation of size groups see page 9. a. women; b. men; c. colored; d girls' high school. Letters are repeated as many times as there are cities to which the condition refers. year, while the same teacher would receive $1,500, should she start work in another city. When we consider the percentage of cities with minimal salaries below $500, we find 19 per cent for elementary teachers and 11 per cent for intermediate teachers. About one in every five cities with salary schedules starts its teachers at less than $500 per year. This is equivalent to only $41 per month on the twelve month basis, or $1.39 per living day. When these figures are compared with the wages paid workers in any other occupations, the oft-quoted expression "A starvation wage for beginners" takes on a real meaning. In the light of the campaign to establish $1,000 and even $1,200 as the minimal salary for every American teacher, the 88 per cent of cities who have a minimal salary for elementary teachers below $800 shows the urgency of the salary situation in the cities of this country. Only one of the 352 cities reporting minimal salaries for elementary TEACHERS' SALARIES AND SALARY SCHEDULES 45 teachers pays a minimum of over $i,ooo, less than three-fourths of one per cent. The situation is very little better for intermediate teachers. The better salaries paid to high school teachers is evidenst in the minimal salaries establisht, as well as in all other tabulations. The additional preparation amounting to more than two years in most cases, received some recognition when we realize that 40 per cent of the cities report minimal salaries for high school teachers, of less than $800, compared to the 88 per cent reporting minimal salaries for elementary teachers below that figure. Seventy-eight per cent of the minimal salaries for high school teachers is below $1,000, which is the lowest proposed minimum for all teachers. Over three- fourths, then, of the high schools fall short of this standard. A study of these tables makes evident one of the reasons why capable young men and young women do not choose to enter the teaching profession, and fur- nishes an argument of weight for the establishment of a minimal salary, high enough to ofTer inducements nearer than ten years in the future. Question 4. — "What is the maximum for elementary teachers?" Fewer superintendents, as will be shown by the totals in Tables XXXIII, XXXIV and XXXV gave maximal salaries for teachers in TABLE XXXIII MAXIMAL SALARIES FOR ELEMENTARY TEACHERS IN 334 CITIES REPORTING (Distributed according to salary received and size of cities.)* Number of cities in each size group Maximal Salary I II III IV V VI Totals $ 400-S449 V 1 450- 499 1 1 2 500- 549 1 3 4 550- 599 1 3 4 600- 649 2 4 5 7 18 650- 699 1 8 5 15 29 700- 749 1 10 9 13 33 750- 799 4 10 17 31 800- 849 11 6 9 12 10 38 850- 899 2 3 7 4 5 21 900- 949 3 6 12 9 7 40 950- 999 3 7 3 1 15 1000-1049 3 5 3 6 3 8 28 1050-1099 3 6 2 1 4 16 1100-1149 3 5 2 4 15 1150-1199 2 1 1 5 1200-1249 3 3 2 1 I 12 1250-1299 1 2 2 1 6 1300-1349 1 1 5 1350-1399 1 1 3 1400-1449 1 1 1450-1499 1 1 1500-1599 2 1 1 4 1600-1699 1 1 1700-1799 1800-1899 1 1 Totals 21 17 42 85 70 99 334 Median S1125 S1045 $1000 $ 896 $ 800 S 781 $ 867 % below 1000 3,i% 24% 50% 73% 90% 78% 71% % below 800 0% 6% 7% 32% 50% 57% 37% *For explanation of size groups see page 9. 'Colored. 46 NATIONAL EDUCATION ASSOCIATION TABLE; XXXIV MAXIMAL SALARIES FOR INTERMEDIATE TEACHERS IN 161 CITIES REPORTING (Distributed according to salary received and size of cities.)* Nu mber of ci ■es in eac ^1 size grouD Maximal Salary I II III IV \- VI Totals $400-$449 11 1 450- 499 500- 549 1 1 550- 599 600- 649 1 4 1 6 650- 699 4 3 3 10 700- 749 1 4 3 5 13 750- 799 1 3 8 12 800- 849 1 8 11 20 850 899 1 1 4 1 7 900- 949 1 3 8 1 13 950- 999 1 1 1 1 4 1000-1049 3 3 3 9 1050-1099 1 1 4 1 2 9 1100-1149 1 1' 2 4 3 11 1150-1199 ! 1 1 1 4 1200-1249 1 1 3 2 1 2 10 1250-1299 1 2 1 4 1300-1349 2 2 2 1 1 8 1350-1399 1 1 1 3 1400-1449 1 1 2 1450-1499 1 1 1500-1599 1 3' 2 1 7 1600-1699 1 1 I 3 1700-1799 V 1 1800-1899 12 1 2300 1 1 Totals 9 7 21 34 47 43 161 Median $1338 $1225 S1263 $1033 $ 856 $ 820 $ 933 % below 1000 11% 14% 19% 44% 77% 70% 54% % below 800 0%. 0% 10% 26% 32% 40% 27% *For explanation of size groups see page 18. 'Women; » Men; * Colored. the different divisions. This can be taken as a fairly safe indication that there is a more pronounst tendency to establish minimal salaries than maximal. The maximal salaries for elementary teachers show a condition almost as deplorable as that revealed in the tabulations for minimal salaries. The median maximal salaries for the 334 cities reporting such salaries is only $867. This means that in half of the cities in the country, as represented by these 334, a teacher in the elementary grade cannot look forward to a salary of more than $867 per year, no matter how good her work or how long her experience. Thirty-seven per cent of these cities report a maximum below $800, while 71 per cent report maximal salaries below $1,000, the lower of th? proposed minimal salaries for all teachers. Practically three- fourths of the cities have maximal salaries at the present time belov/ this proposed minimum. The conditions are slightly better for the intermediate teachers as they were also found to be in the study of the minima] salaries. But. even with these more successful and better prepared teachers, 27 per cent of the cities set maximal salaries below $800, and 54 per cent below $1,000. The maximal salaries for high school teachers are considerablv higher than those for either the ele- TEACHERS' SALARIES AND SALARY SCHEDULES 47 TABLE XXXV MAXIMAL SALARIES FOR HIGH SCHOOL TEACHERS IN 326 CITIES REPORTING. (Distributed according to salary received and size of cities.)* Number of cities in each size group Maximal Salary I 11 III IV V VI Total $ 650- 699 1 1 700- 749 1 1 750- 799 1 1 800- 849 1 1 3 1 6 850- 899 c a 1 4 5 900- 949 1 1 3 7 18 30 950- 999 a 2 a 4 9 15 1000-1049 1 3 6 6 16 1050-1099 2 aa 1 a 7 10 1100-1149 a 3 2 a 9 8 22 1150-1199 1 d 2 4 a 1 8 1200-1249 1 1 3 7 5 a S a 22 1250-1299 1 1 aa 3 a 3 3 11 1300-1349 a 1 aa 3 4 1 3 12 1350-1399 2 2 a 2 b 2 aa 4 4 16 1400-1449 1 2 2 5 3 1 14 1450-1499 2 2 a aag 6 ft 1500-1599 2 1 6 15 9 7 40 6 aab ft ft 1600-1699 3 3 b 13 b 8 b 2 4 33 1700-1799 2 2 2 9 2 17 aae b bb cbbfg 1800-1899 6 1 b 3 6 6 1 2 19 1900-1999 b 1 b 1 1 1 4 2000-2099 3 2 2 3 10 2100-2199 6 1 1 1 2200-2299 b 1 1 2 2300-2399 1 2 2400-2499 1 b 2 1 2500-2599 1 3 2 700-2799 1 1 3000-3099 1 1 Total 26 20 48 81 65 86 326 Median $1800 $1666 $1583 $1523 $1181 $1078 $1358 % below 1500 23% 35% 40% 46 %o 77% 85% 59% % below 1000 4% 0% 4% 7% 23% 41% 15% *For explanation of size groups see page 9. a. women; ft. men; c. colored; d. girls' high school; e. boys' high school;/, college graduates; e- single men; h. married men. Letters are repeated as many times as there are cities to which the condition refers. mentary or intermediate, and are spread over a much wider range. The median maximum for high school teachers is $1,358, while 15 per cent of the cities set the high school maximum below $1,000, forty-two per cent below $1,200, and 59 per cent below $1,500. In all three divisions it is noticeable that the size of the city has a decided effect upon the maximal salary set. since the median salary diminishes regu- larly with the decrease in city size. When we consider the very low entering wage for high school 48 NATIONAL EDUCATION ASSOCIATION TABLE XXXVI ANNUAL INCREASE GRANTED TO ELEMENTARY TEACHERS IN ?,3:i CITIES REPORTING Distributed according to increases granted as reported by city superintendent and size of the cities )* Annual Increase Number of cities in each size group where stated as a definite amount I II III IV V VI Total $ 18 20 22K 25 30 35 40 45 47K 50 60 62K 75 85 90 100 120 150 175 1 1 1 6 I 1 2 2 1 5 1 1 5 3 1 11 6 1 1 1 I 2 10 3 22 1 1 1 1 1 2 2 1 1 12 2 12 1 1 2 1 1 1 5 4 1 12 1 21 1 1 1 2 1 2 1 10 17 3 1 5 38 8 77 9 1 4 1 3 8 1 1 1 No definite in- crease Varying and com- bination in- creases (a) 5 1 6 8 5 26 12 23 29 27 47 95 Total IS 16 37 82 72 108 :Mi *For explanation of the size groups see page 9. (a) In this group ten cities reported increases of S22.50-$45; seven cities reported S2S-$50; five cities $45-$90; eight cities S50-$100; four cities S10%; and sixty-four other cities reported various increases such as $25-$29, on $45 every 2 years etc. teachers in connection with the time spent in meeting the preparation requirements for high school teachers and the present day cost of such an education, there is a httle wonder that more competent teachers do not enter the high school field when the median maximal salary for half of the cities is below $1,358. This lack of financial incentive to continuance in the teaching profession is felt in all three divisions. It is one of the lines of reform aloYig which much progress must be made within the next few years in order to maintain even the present standard of efficiency in our schools, to say nothing of an increast efficiency which the enlarged demands upon the school of the present critical period of reconstruction have made. Question 5. — "What is the annual increase for elementary teachers ?'' The answers to this question for elementary, intermediate and high schools are given in Tables XXXVI, XXXVII, and XXXVIII. The returns as they were given on the superintendents' blanks showed wide variation. An attempt v/as made to group them into as few groups as possible, but in each division there remained a relatively large group of increases in varying combinations, too numerous to tabulate. Some typical instances are given in the foot notes on eacli t'lble. C^!' the annual increases as distributed for the elementarv teachers in Table TEACHERS' SALARIES AND SALARY SCHEDULES 49 TABLE XXXVII ANNUAL INCREASE GRANTED TO INTERMEDIATE TEACHERS IN 154 CITIES REPORTING (Distributed according to increases granted as reported by city superintendents and size of the cities.)* Annual Increase Number of cities in each size group wliere stated as a definite amount I „ III IV V VI Total S 22y, 25 36 40 45 47>^ 50 60 62 >i 67>'i 72 75 80 90 100 180 1851 2 2 4 5 2 2 2 .1 4 7 1 1 1 1 3 1 1 1 11 1 5 1 1 1 3 2 1 3 7 10 1 1 2 1 \ 1 22 1 33 3 1 1 1 3 1 6 9 1 1 No definite in- crease Varying and com- bination in- creases (a) . . . 4 1 2 1 6 4 11 8 7 14 5 28 35 Total 8 7 16 35 44 44 154 *For explanation of size groups see page g. (a) In this group seven cities reported increases of $50-S100, while the remaining twenty-eight cities reported various increases such as $45-$90, §38 first year, $64 the second, $25, $50, $75, etc. XXXVI, we find 47 of the ^^^ cities with no definite increase, and of the 193 cities reporting fixt increases, we find 164 or 85 per cent giving an annual increase of $50 or less. This percentage becomes 70% for the intermediate teachers and 54^ for high school teachers. These figures, compared with the returns from the actual increases given, as shown in Tables XIV-XIX inclusive of Part I from the same questionnaire, will show that by far the most common increase given to the teachers is $50, or less. Should these figures include the cities providing for no increase, the percentages would run very much higher. -An increase such as $22.50, $25, $45 or $50 indicates clearly, as was shown also in the above tables of Part I, that these increases have been given according to custom, rather than in any attempt to adjust the teacher's salary to living conditions of the past year. Only a very few superintendents in their replies indicated the existence of any flexibility in the matter of the annual increase. The fact, however, that four superintendents definitely stated that the annual increase was a matter of early adjustment ofifers a ray of hope. Question 6 — "On what conditions does the granting of this increase depend ?" Table XXXIX gives a summary of the 309 answers to this ques- 50 NATIONAL EDUCATION ASSOCIATION TABLE XXXVIII ANNUAL INCREASE GRANTED TO HIGH SCHOOL TEACHERS IN 301 CITIES REPORTING (Distributed according to increases granted as reported by city superintendents and size of the cities.)* Annual increase Number of cities in each size group. where stated as a definite amount I II III IV V VI Total $ 25 33i3 35^ 36 45 47 K 50 60 62 K 75 80 90 100 120 185 202 1 1 11 1 2 1 1 1 2 6 4 1 5 1 8 14 2 1 1 3 12 1 6 2 11 4 5 1 12 12 2 1 2 5 1 29 43 U 40 No definite in- crease Varying and com- bination in- creases (a) 6 1 10 3 13 16 18 17 17 36 20 73 84 Total 19 15 37 75 63 92 301 *For explanation of size groups see page g. (a) In this group twenty cities reported increases of S50-S100; eleven cities $45-S90; nine cities $25 50, 75, while the other forty-four cities reported various increases such as $50 under $900, $10 up, $50-f-5%-|-$100 bonus, etc. TABLE XXXIX CONDITIONS DETERMINING THE GRANTING OF INCRE.\SES IN SALARIES IN 309 CITIES REPORTING. (Distributed according to the conditions given by city superintendents and size of the cities.)* Condition Number of cities in each size group. Ill IV VI Total % of group 1. "Success," "Merit," "Efficiency," "Satisfaction" 2. Length of Service 3. "Success or Efficiency and Length of Service " 4. "Training," "Education," "Self- improvem ent " (a) 5. Recommendation of Supt., Board, Committee, or a combination of these. 6. "None." ' "Irregular" 7. "Market Conditions," "Competi tion, " "Scarcity" 8. "Cost of Living" 9. Other Conditions (b) Total. 17 13 39 76 65 99 3091 *For explanation of size groups see page 9. (a) In all cases except five this is in combination with either "tenure" or "success" (b) Including such answers as "Attitude," "Professional Zeal," "Funds Available. Certificate. " 30% 27% 17% 7% 6% 3% 2% 1% 4% "Class 6f TEACHERS' SALARIES AND SALARY SCHEDULES 51 tion. There were almost as many wordings to this answer as there were superintendents answering the question. Certain groups of re- lated conditions, however, were combined, making the set of nine given in the table. By far the largest percentage of answers give as the determining condition the idea of success, or length of service, or a combination of these two. In reality, 74 per cent of the answers are included within the first three groups. This indicates that three out of four school systems have a more or less automatic method of grant- ing increases to teachers, since the conditions set forth in Group i amount to little more than length of service because of their indefinite nature, and the inaccuracy of any present methods for determining the degree of "success," "merit," "efficiency," and "satisfaction." It is significant that only 7 per cent of the replies included in any way the element of training, education, or self-improvement. The 6 per cent listed under Group 5 probably belong in one of the first three groups. A separate division was made in order to separate those answers where definite mention was made of a recommending author- ity. The irregularity of the answers to Question 6 is not as evident from the form in which the table is put. Of the 309 answers, there were at least 150 different wordings for the conditions named. These were reduced to 40 on the first tabulation, and then combined into the present 9. This table will help to show the need for a greater standardi- zation in respect to the granting of increases, and clearly shows the existence of one of the most difficult problems in the making and the administering of an efficient salary schedule, a schedule which will not only protect the teachers who are in service, but which will oflfer constant incentive to progress. Question 7 — "What does good board and a comfortable room cost an elementary school teacher in your community?" (12 months). In determining some adequate measure of teachers' expenses, "board and room" was decided upon as the figure most easily obtained, and most reliably usable. As a single figure it represents the biggest item of a teacher's expense for the year, and also probably reflects the cost of living in a particular community as well as any other single measure. The question was put on the basis of 12 months, because teachers have to live thru that period each year, and teaching cannot be made a definite profession nor real progress made in the matter of salaries until teachers' salaries and expenses are computed on the basis of twelve months rather than nine. Table XL gives the cost of "board and room" for 12 months for elementary teachers in 360 cities reporting, and by means of the footnotes covers the answers for inter- mediate and high school teachers as well. There is considerable irregularity in the median costs of "board and room" in the dift'erent 52 NATIONAL EDUCATION ASSOCIATION TABLE XL COST OF "BOARD AND ROOM" FOR TWELVE MONTHS FOR ELEMENTARY TEACHERS IN 360 CITIES REPORTING. (Distributed according to amount paid for board and room and size of city )* Number of cities in each size group Cost of Board & Room for twelve months I II III IV V VI Total $ 50- $99 1 1 100- 149 ISO- 199 1 1 2 200- 249 / 1 2 3 250- 299 1 1 V 1 4 7 .? gk i gb 300- 349 ^ 2 5 17 26 "f hhi 17* hzicC 350- 399 1 1 7 23 25 40 97 c 05)' urw yc 400- 449 2 b 1 10 20 ne 21 30 lid 84 450- 499 5 3 5 14 10 20 57 a de mp e 500- 549 5 6 9 16 10 7 53 550- 599 1 1 i 1 4 7 600- 649 1 1 1 5 3 4 15 650- 699 1 1 700- 749 1 1 2 4 750- 799 1 5 1 1 3 Total 16 13 37 86 78 130 360 Ql $460 $471 $395 $388 $383 $361 $376 Median 500 513 433 440 414 402 426 Q3 540 540 515 511 483 459 49 4 * For explanation of size groups see page 9. Notes show single cases where superintendents quote higher board and room for intermediate or high Fchool teachers than for elementary teachers. a. Elem. S416-$520; Inter. $460-S5''0;; H.S. $520 6. H.S. $540. c. H.S. $480. d. H.S. $572. e. H.S. $520 up- /. Inter, and H.S. $4S0-$5OO. g. H.S. $364. h. H.S. $416. i. H.S. $400. j. H.S. $800. k. H.S. $300-$420. /. H.S. $312-$364. m. Inter. & H.S. $600. n. H.S. $468-$624. o. Elem. S300-S400; H.S.E$360-$425. /).'H.S. $500-$720. q. Int. $400-$450; H.S. $450. r. H.S. 420-S500. 5. H.S. $775. /. Elem. S312-S364; H.S. $364 up. H. H.S. S416-S520. V. Elem. S2 70: Inter. $312-$364. H.S. $312-$520. w. Elem. $416: Inter. $416-5442; H.S. $442. X. H.S. S350-$400. y. H.S. $400-S600. z. H.S. S364-.$468. A. Elem. $480-$600; H.S. $600 up. B. Elem. $336; Inter. $360; H.S. $364. C. Elem. $360; Inter. $360-$420; H.S. $420 size groups. The effect of the size of the city is as pronounst as in any other items of the study, thru the comparison of the median $500 for "board and room" in cities of Group I, with the $402 in cities of Group VI, shows as great a difference as existed in the median sal- aries for those groups. The quartile deviation for the different groups is surprisingly uniform considering the prevalence of the belief that it costs very much more to live in the larger cities. A great many of the answers were made in terms of multiples of 52, since "board and room" in most places is figured at so much per week. The grouping of these returns into intervals of $50 will but slightly distort the figures, since TEACHERS' SALARIES AND SALARV SCHEDULES 53 the groups will about as often vary one way as the other from the figure actually reported. The unusual number of footnotes to this table is a means of calling attention to a condition which has been allowed to exist, and which in many cases is taken for granted as necessary, namely, that high school teachers, and in a number of cases interme- diate teachers, pay more for "board and room" than elementary teach- ers. Twenty-nine superintendents in answering Question 7 for the intermediate and high school teachers put a higher figure for the high school teachers than for the elementary teachers. The footnotes show the dififerent recognitions. A tabulation of the difference given here brings a median recognized dilTerence of $68 in the year's cost for '"board and room." Two of the dififerences are as high as $250. This is but an implied acceptance of a financial, educational and social dif- ference, which in many communities has been assumed to exist between teachers in the grades and the high school. The fostering of such a distinction cannot help but work against the professionalizing of teaching, and yet this social difterence is financially forced on ele- mentary teachers in a majority of cities by the very much lower salaries paid to them, in comparison with teachers in the high school. A satis- factory adjustment to this condition cannot be had until elementary teachers are as well prepared for their work as high school teachers and receive equal salaries. Additional light will be thrown upon the adequacy and inadequacy of the minimal and maximal salaries establisht in the salary schedules of these cities by comparing the establisht salaries with the cost of living as it is indicated by the cost of "board and room" within each particular city. In order that this may be done it is necessary to determine what percentage of a teacher's annual expenses are included in "board and room." This cannot be done without a careful analysis of teachers' budgets, and the consequent study of the necessary ex- penses for teachers as compared with the expenses of workers in other fields. In this study it is advocated that "board and room" should not require more than 50 per cent of a teacher's salary, basing this prin- ciple upon the results of the following studies or budgets. Robert Coit Chapin,^ in his "Standard of Living Among Working- men's Families in New York City," publisht in 1909, establisht certain percentages spent for housing and food by certain income groups, between $400 and $500 to 53 per cent for families with incomes be- tween $1,500 and $1,600. These percentages were for families aver- aging five members and for New York City, where the percentage spent for rent, particularly, would be higher than in most other cities. Thev were also for families where the expenses of professional upkeep 1 "Standards of Living Among Woikingmen's Families in Xew York City," Russell Sage Foundation — page 70. 54 .\AJ10\AL EUiCAl'lUX ASSOLlAl lO.\ TABLE XLI ■WERAGE PERCENTAGE OF SALARY SPENT FOR VARIOUS ITEMS AND AVER.\GE ANNUAL SALARY OF WORKERS IN THE SHIPBUILDING DISTRICTS OF THE UNITED STATES 1918.' Number of familes studied. Clothing for men Clothing for women Total for clothing Furniture and furnishings . , Food Housing Fuel and light Miscellaneous Total Average annual salary .... New Eng- land and Eastern^ 1232 8.0% 7.4% 15.4% 4.0% 43.8% 12.0% 5.2% 19.6% 100.0% $1407.00 Sou'h- crn' 838 7.4% 6.8% 14.2% 4.1% 44.4% 11.3% 4.4% 21.6% 100.0% $1334.00 Great Lakes* 1210 7.8% 6.9% 14.7% 4.4% 41.6% 14.2% 5.0% 20.1% 100.0% $1460.00 Pacifi Coast' 918 7.5% 7.6% 15.1% 4.1% 38.6% 13.8%, 4.1% 24.3% 100.0% $1422 00 Total 4198 7.7% 7.1% ' 14.8% 4.2% 42.2% 12.9% 4.7% 21.2% $1411.00 1 From Month!}' Review, Bureau of Labor Statistics for the months of March, June, August, September, and October, 1918. The cities included in each group, with the number of families included in each, are as follows : 2 Bath Me. (99), Portland, Me. (103), Boston, Mass. (210), Portsmouth, Mass. (104), Buffalo, N. Y. (204), Philadelphia, Pa. (512) ^Mobile, Ala. (100), Jacksonville, Fla. (57), Pensacola, Fla. (65), Tampa, Fla. (51), Slidell, La. (50), Baltimore, Md. (205), Beaumont, Tex. (50), Houston, Tex. (91), Newport News, Va. (72), Norfolk, Va. (97). Cities with less than 50 families studied were not used in these figures, nor the earnings of colored workers where given separately. * Chicago, 111. (215), Detroit, Mich. (256), Cleveland, Ohio (203), Lorain, Ohio (109). Toledo, Ohio (207), Manitowac, Wis. (iii), Superior, Wis. (100) ■^ Los Angeles, Cal. (157) San Francisco, Cal. (286), Portland, Ore. (164), Seattle. Wash. (208), Tacoma, Wash. (103). and educational advancement were much lower than for the ordinary teacher. The Railroad Wage Commission,^ in its report of April 30, 19 18, found that for 265 families studied, the amounts spent for rent, fuel, light, furniture and food varied from 80 per cent in families with incomes less than $600 to 67 per cent for families with incomes be- tween $1,000 and $2,000. These were the figures for 191 7 and are consequently higher for these items than would be found in normal times, due to the unprecedented increase in the cost of these items during that year. In a study by the Bureau of Labor Statistics- of the percentage of salaries spent for various items by workers in the ship-building district of the United States for 191 8, it was found that the average amounts spent for furniture and furnishings, food, housing, fuel and light amounted to 64 per cent. Table XLI gives these percentages for four ship-building districts of the United States. The 64 per cent will again be influenst by the fact that the study included only workers with families, and also by the same conditions as were true in the Chapin and Railroad Wage studies, that the "miscellaneous" expenses arc necessarily smaller under these conditions than would be true for a teacher. 1 From the Report of the Railroad Wage Commission, April 30, 1918 — page 93. = Ship-building from the Monthly Review of the Bureau of Labor .Statistic."! for tVie mnnths of March, June. Augufsi. September and October, 191R. lEACUEKS' SALAKIES AM) SAL.IKV SCHEDULES Bruere in "Increasing Home Efficiency"' analyzes the budgets of some 14 teachers with incomes mostly above $1,000, and finds that the average percentage spent for food and shelter by these teachers is only 33.3 per cent. This is materially lower than any of the other precentages, due to the higher salaries of the teachers studied and the fewer people dependent upon the income. Gibbs in "The Minimum Cost of Living."- a study of families of limited income in New York City, gives as the ideal division for incomes between $800 and $1,000. rent 20 per cent and food 30 per cent. The Consumers' League" of New York City, in a study of the budgets of working girls in New York State, found that the necessary distribution of expenses for an income of $780 involved the expendi- ture of 49 per cent for "board and room." Miss Helen Louise Johnson, Editor of the General Federation Magaauie, the official organ of the "Federation of Women's Clubs of America," and national authority on Household Budgets, when askt what percentage of a teacher's expenses "board and room" should be, said : "It should not be more than 50 per cent, and it would insure better teachers and a more efficient citizenship if it were only 40 per cent instead of 50." At the request of Professor B. R. Andrews, Assistant Professor of Household Arts of Teachers College, the following estimates of the "board and room"' cost for teachers was made by Mrs. Alice P. Norton, Editor of the Journal of Home Economics: "Board and Room" lucomc Per cent $1,800 42 1,200 50 900 57 780 59 The State Teachers' Association of Michigan.'' in a study of teach- ers' salaries computed tables which were based upon the assumption that "board and room, laundry and carfare" for twelve months would constitute not more than 55 per cent of a teacher's necessary expenses. An examination of the teachers' budgets of the women teachers of Columbus, Nebraska,'' corroborates this figure by giving the median annunl expenditures for women teachers in the elementary schools for 'Bruere, "Increasins: Home Efficiency''— page 316. Macmillan. = '•Minimum Cost of Living," by Winifred Stuart Gibbs — page 13. Macmillan. ■' Pamphlet of "The Consumers' League of New York City for January, ipig, entitled "In riiis Living?" ^Teachers' Salaries in Michigan by the Michigan State Teachers' Asyociatioi [lage 6. ° Annual Report of the Superintendent of City Schools, ("olumhus. Nebraska — pace 25. 56 NATIONAL EDUCATION ASSOCL-ITION "board and room" at 54.6 per cent, and for high school teachers 52.6 per cent. A simiHar sttidy of the hving expenses of 250 teachers in Tulsa, Oklahoma/ gives a median expenditure of 49 per cent for these two items. If with increast salaries there is going to be a proportional increase in the amount of preparation demanded, and in the amount spent for professional advancement during teaching, the per cent of the salary spent for **b«a*d and room" must constantly decrease rather than increase. Making an allowance for the fact that in the above studies and estimates many of them are for families, and under conditions not demanding as heavy expenditure for "advancement," it seems entirely fair to advocate that the average amount spent by a teacher for ''board and room" should not exceed 50 per cent of her income. As the budgets of individual teachers will probably show with present salaries and expenses, more than 50 per cent of the salary will be spent for "board and room." Theoretically, it should be less than 50 per cent, since the expenses other than "board and room," such as clothing, books, magazines, medical service, travel, charity, profes- sional advancement, etc., should require 50 per cent or more of a teacher's salary. Moreover, the above items do not include provision for insurance, savings or investments, which a teacher has a legitimate right to enjoy as well as the responsibility of providing for. The total necessary expenses for elementary teachers were computed from the cost of "board and room" as given by the superintendents in their answers to Question 7. These total expenses (found by doubling the price of the cost of "board and room") were then transferred into percentages of the minimal and maximal salaries offered in the same cities. Tables XLII and XLIII show the distribution of these per- centages with the minimal and maximal salaries. It is noticeable that when the total expenses foimd in this way are referred to the minimal salaries that the median percentages of those salaries spent is 137.5 per cent. In other words, the total expenses of teachers on this basis in half of the cities exceed 137.5 P^r cent of the minimal salary offered. It is noticeable that 6 per cent of the cities have total expenses on this basis exceeding 200 per cent of the minimal salary, and that 97 per cent of the cities expect teachers to start at a minimal salary which would demand the expenditure of more than 100 per cent of that salary for necessary expenses. The condition is better relative to the maximal salaries, but even here as shown in Table XLIII, the median amount of the maximal * "Expenses •! Teachers in Tulsa, Oklahoma" — National Education Association Leaflet. TEACHERS' SALARIES AND SALARY SCHEDULES 57 2 o H -. ^ vO r^ •* \o 00 00 (N t^ in o OM^ tN — t fn 1" in fcrc — — ^ ««5 a 01 a & aj ■w o H u >2 3 o- Si 60 ffl C " - § - - - - o - - - - -- m s « mro — - o o fStNTl. rt m o 00 fN 'O f^ — * o 1^ rofnm>c — — — ■ ts § — i — omtsf^tN ^ -H Si o « —-OOO-O^tvir-j -H o o — r-\\r'.\n^-«in^-^'i>.^ 5 o -< ■1 o ■<(< o 00 - n o -- N o ^ cs o in o r 'S r £ 2 > tNf^i^'*T)'inin>ovCi^r^xocO'0'CC— ' — oK^if. n-fi-mor^xo-O — fN'^TO>c 2 o incinomcmomoincincincincinc"-. CirC'^CCCSSCCCCOCO cN'^f^-'^'^finin'O^r^r^ococa^o^OC^ — ^J^:". "■. -r-r i^. ci^xcc — ?Nr^, -r in o 5© ^ o %8 NATIONAL EDUCATION ASSOCIATION ^ X ^u 2 >- cfl <[iiU o J 5; td < g Z ctf H , (d a^ ::^ > o < u Oh H [fl w o ,. X TIES THE IN T w u ttj t5 J ;^f?S PQ < •^ ~x H ^ Q u ^ w < " c^ S Q " H S W Di (^^< fc w H o u 2: -.a w 05 S u <- ■* ARI SAL ELE J , < ►J C/3 < .iS xs ^ a: fc^ o 5 o « Tf •* oo O r^ CMC t^ 0> « 00 ro (N Tf (v) irj tC oj « — ro -h O o o ■O o >/5 o o . u <2 o o 1^ « ^ r. a,' a; n o - - o ID tN-H (»3 — 1 T3 o ---" >0 o — (N CN fN <~0 -H - '3 o (N CN — !^ ■* (^1 tN O M o tN O "J" CN r^ •* « T- rt .«.rt o 41 o o w ^H (N IT) O »0 rrj >o *0 r^ f*^ fN o '--• tN (S lO r- O "O I^ •* 00 00 rO —1 ■* -- — ■rt - § -"•*^Or)0>0-*PO-tc^c^c^c^o-o^c^o^o■. c>o>av'0 fOfO-*^ir;U-;^O>OI^<^00000va.OO — — ''-lf^J"5<^'*^i/^Ol^CoaC— •r^fO^O.C "t3 o B gg8S8^§^8Sg^g^8^8^8?§=2=g§8g8g8§g§gS ^ .^-H„ r.^r.-4r.cNr^ TEACHERS' SALARIES AND SALARY SCHEDULES 59 salary which would be spent is 99.3 per cent. The teachers in 48 per cent of these cities, according to this standard, are compelled to spend more than 100 per cent of the maximal salary offered. This means that the chances are about even in the 310 cities reporting maximal salaries for elementary teachers, that when, after years of service, this maximum is reacht, it will still be inadequate to meet the living expenses in that city. It will be notist in Tables XLII and XLIII that there is a distinct negative correlation^ between the minimal and maximal salary granted and the total expenses of the teachers as found by counting the cost of "board and room" as 50 per cent of those expenses, (a correlation of practically minus .5 in both cases). ^ This means that the higher the minimal or maximal salary the smaller the per cent of salary is spent for necessary expenses and the lower the salaries set the larger the percentage spent for living expenses. These figures show the utter inadequacy of salary schedules based upon traditional salaries, and the urgent necessity for establishing minimal ;'.nd maximal salaries which will provide for an adequate living imder conditions prevailing in any particular locality. Not until this is done and some provision made, not only to meet all living expenses, but some slight saving, can we hope to have a permanent improvement in the quality of teachers nor in the amount of professional advance- ment during service. Question 8. — "Is teaching experience a prerequisite to election in your elementary schools?" — "How much?" Tables XLIV, XLV and XLVI give the answers to this question for elementary, intermediate and high schools. P^wer superintendents answered this question, as will be shown by the total in each table, and considerable variation existed in the replies. Where definite amounts of experience were required it will be seen that by far the largest number of cities demand one or two years' experience as a prerequisite to election. T^or elementary schools t,/ per cent of the cities replying definitely state one year as a prerequisite, and 39 per cent definitely give two years as a requirement, making a total of 76 per cent de- manding either one or two years of experience. For intermediate schools 30 per cent demand one year, 42 per cent two years, a total of J2 per cent, while for high schools, 35 per cent of the cities demand one year, and 38 per cent two years, a total of 73 per cent. The de- mand is rather constant thru the three divisions with the exception that there is a slight increase in the number of cities demanding three years of experience for high school teachers. Relatively few of the cities specify that normal training will serve as a substitute for 1 For explanation of term see page 164. Appendix III. ■■'Found by method explained on page 164-5. Appendix IIJ. 60 NATIONAL EDUCATION ASSOCIATION TABLE XLIV NUMBER OF YEARS OF TEACHING EXPERIENCE REQUIRED AS A PREREQUISITE TO ELECTION IN THE ELEMENTARY SCHOOLS OF 205 CITIES REPORTING. (Distributed according to amount of experience required and size of the cities.)* Number of cities in each size group. Experience required in years I II III IV V VI Total 1 1 2 4 K 1 1 1 2 4 11 14 16 29 76 2 7 1 11 19 16 26 80 3 1 1 2 6 4 1 1 to 2 2 2 7 1 to.S 1 2 to 5 1 1 Normal training and graduation 3 1 1 6 Normal training + 1 or 2 years' experience 1 1 3 Normal training or 1 or 2 years' experience 1 "Probation," "Apprentice," or "Cadet" 2 3 "Some" experience required 2 4 6 "No definite rule" 1 6 7 Other requirements 1 1 2 Total 11 12 24 46 40 72 205 *For explanation of size groups see page 9. TABLE XLV NUMBER OF YEARS OF TEACHING EXPERIENCE REQUIRED AS A PREREQUISITE TO ELECTION IN THE INTERMEDIATE SCHOOLS OF 120 CITIES REPORTING. (Distributed according to amount of experience required and size of the cities.)* Number of cities in each size group. Experience required in years I II III IV V VI Total 1 2 3 4 5 2 to 3 2 to 6 3 to 4 Normal training and graduation "Some" experience required "No definite rule" "Experience preferred" Other requirements 5 1 1 1 2 2 1 1 6 6 1 12 10 11 14 15 3 4 1 36 51 12 1 1 1 1 2 3 8 2 Total 7 1 7 13 26 31 36 1 120 *¥oT explanation of si e group.s see pa^e 9. experience, 'i'liese totals slicnv the prevalence of the custom, too frmly fixl by sch )ol men, of demanding experience before election to city systems. This automritically niakes the rural school aid the pC'orer district.^ the "training schools" for city teachers. C'uestion <;.- -"State th.e iiunil;er of years in ac'idemic -md pr jfes- sion.-il preparation above the o - " CI 00 -- «-.— — o ■<*■ CN (N tN -H r~ t (N —: -^ rr; rri r-t (N 1-0 _- -.lO " ~""" ^ ■o I»5 _ — CN CS ^C-J'^fJN O <*5 „ oiT(ir<5"1— -^ '^ O O ~3 ~; -; X >r. _ o S ^ot — / - >A, U-. - s •* — — o> ^"^ »OlC OOIM 5 ^ ^ fs i^ r^ f^ 'O -o 00 - - ' cs •2 1 1 o. 3 2 O >, $ 300- 349 350- 399 400- 449 450- 499 500- 549 550- 599 600- 649 650- 699 700- 749 750- 799 800- cS49 R50- ,S99 iiiiiiiiiiiiiiiiiiiiiiil o H ■23. c c .2.2 •5 -5 V o 70 NATIONAL EDUCATION ASSOCIATION presented, and second, the correlation existing between the several items and the salary received in the several groups. PART I. Salary Situation as Shown by Medians of Items Studied. All the medians of all the items studied have been assembled in Table LI., and arranged according to size and location. The number of answers used, as given in the table, is the total number of teachers whose replies were used. Teachers did not always answer all of the questions, so the number of teachers in each study varies slightly from the total number as given. This variation is in no case enough to affect the validity of the results. Because this variation is negligible, the median salary is given only once for each of the two years studied, and can be used for comparison with the items studied for the respective years. An examination of the median salaries, as reported by the teachers, shows the same effect of size of city upon salaries as was evidenst in Chapter I. The decreases in median salaries are at about the same rate as in Table I. The median salaries are in all size groups some- what less than the corresponding medians in Table I. This is ex- plained by the fact that probably a larger proportion of the more poorly paid teachers filled out the blanks and returned them. It is evident from the comparison of the median salaries for 1918-19 with those of the previous year, that salaries were increast from $80 to $100 in all the groups. This corroborates the result from the answers of the superintendents, as shown in Table XIV where the median increases for the entire elementary group was $91. Except in Group V there is as much or more variation between geographical groups within any size groups as there is between the size groups themselves. In all groups, as shown in the previous chapter, the highest salaries are paid in Group E and the lowest in Group B. In Study number i, of Table LI, the median total teaching experi- ence was found to decrease with the size of the city. The larger cities have greater power to hold the teachers in service. The median amount of teaching experience ranges from practically 7 years to 10^. This is a hrger figure than might be expected from previous studies,' but undoubtedly, the teachers who have definitely decided on teaching for a life work were more concerned with the salary problem and more interested in returning the questionnaires. The variation between me- dian number of years teaching experience is as great within any size group as between groups. It does not follow that Group E, where the cities pay the highest salaries, always holds its teachers the longest. It does in only one group of the six. Size is a larger determining factor in 1 Coffman, "The Social Composition of Teaching: Population." Teaches College Con tributions to Education, No. 41. E QUESTIONNAIRE 1 ACCORDING 1 o IE AC HERS' SALARIES AM) SALAR)' SCHEDULES 71 length of tenture than location. Intermediate teachers have the longest median experience, probably due to the tendency to put the intermediate schools under successful teachers of considerable experience in order to insure the success of the new schools. High school teachers have a shorter median length of experience than elementary or intermediate, which about balances the extra time spent by them in securing the additional preparation demanded for teaching in high schools. In Studies 2a and 2b, Table LI, on the personal living expenses for the years 1917-18 and 1918-19, it is evident that the increase in the median cost of living is greater in the larger cities than in the smaller. It is also evident that a large part of the increase in salary received in the two years was used for increast personal living expenses. In Groups I and IV the increase in median living expenses was greater than the median increase in salary. There seems to be no general tendency for living expenses to have increast more in any one section of the country than another. The increase in cost of living would probably have been shown to be even higher had it not been for the fact that quite a few teachers recorded their living expenses up to the time cf filling out the questionnaire and did not so indicate it. These were then used as the expenses for 12 months and compared with other statements for annual expenses. In Studies 3a and 3b of Table LI the median percentages of salaries spent for living expenses are given. Percentages are astonishingly even, with but a slight increase in percentage spent as the median salaries decrease in the smaller localities. This shows that the decreast cost of living in the smaller places nearly offsets the decreast salary. at least so far as the percentage spent is concerned. This is a danger- c>us conclusion from which to get any satisfaction. The cost of living is rapidly becoming standardized, and the cost of attendance at colleges and summer sessions is increasing in proportion to the other increases. Even tho 13 per cent of the median salary for 1917-18 for Group Y is left as compared with the 18 per cent for Group I, the discrepancy is doubled, in that the 13 per cent is on a smaller salary than the 18. and yet the cost of living and of education and professional advance- ment is very much the same in both instances. The intermediate group has a median percentage the same as the lowest of the elementary groups, which might be expected from the higher median salaries of the intermediate teachers. The same holds true for the higher median of high school teachers. Since there is only one instance in the ele- mentary groups where the median percentage spent is under 80 per cent, it is a safe conclusion that in practically all groups thruout the country the teachers have a median of less than 20 per cent of the salary to spend for "recreation, hooks, magazines, travel, professional n NATIONAL EDUCATION ASS0CL4TI0N advancement, savings, etc." This will at once be recognized as much too small. Practically no authorities on the making of budgets give less than 20 per cent for so-called "higher life" and many of them advocate 25 and 30 per cent. It seems obvious that teaching, along with the other professions, should demand even a higher percentage for these items than the ordinary family whose budgets have been made the subject of investigation in most of the studies. Study 4, Table LI, shows the increase or decrease in the per cent of salary used for personal living expenses in 1918-19 over 1917-18 to be very small. The largest median increase for any size group is but .8% and the decrease 1.8%. It indicates that for the majority of teachers thruout the sections, the percentage of expenditure in the second year was practically the same as in the first. This is but a corroboration of what would be inferred from comparing the percentages in columns 3a and 3b. The variation in the increase and decrease within any group is very little more than that between the groups. The largest instance of decrease was in Group BI, where there was a 5 per cent decrease. In the same group, however, the salary increast in the same time almost 20 per cent, showing that there was an attempt in the city from which these figures were taken to adjust salaries to the cost of living. Studies 5a and 5b. Table LI, give the median amounts spent for "recreation, professional advancement, etc.," for the year 1917-18 and 1918-19. Here again there is surprising uniformity, and an astonish- ingly small amount for the median expenditures in the dififerent groups. The size of the city does not materially afifect the amount spent for these items, except in the two smallest groups, and here only slightly. The highest median amount spent by any group for these items is only $88 for the year. How inadequately must the items of recreation, outside reading, professional advancement, travel, philanthropy, insur- ance, savings and these other necessary items have been provided for by the half of the teachers in this group who spent less than $88 on all of these items combined. A study of the actual distributions of these items will show a range between zero and $500, with relatively few instances in excess of $100. These figures offer a very drastic criticism on existing salary conditions, since they show a teacher's utter inability to care for this important side of her work in an adequate manner. Studies 6a and 6b. Table LI, which give the median total expenses for the years 1917-18 and 1918-19, show a condition not very different from that developt in the study of living expenses in 2a and 2b. In fact, due to the very small expenditure for recreation and professional advancement, the total expenditures which are obtained bv adding the lEACHERS' SALARIES AXD SALARY SCHEDLLES amount spent for living expenses and the amount spent for recreation and professional advancement are in most cases not so high as they should be. Here, as before, we find the expenses for 1918-19 in all cases increast over those of the previous year about as much as the salary was increast. A direct relation between size of the city and the amount of total expenses is repeated. A more interesting view of this situation is obtained from Studies 7a and 7b, Table LI, which give the median percentages of the total salary spent for total "necessary expenses." From these medians it is seen that the teachers who are receiving median salaries are spending peril- ously near to 100 per cent of their salary. If this is true about the median, the condition must be very bad for those whose expenses go above the median. There are 15 instances during the two years where the median expenditure for a group was 100 per cent of its income or more, indicating that in these 15 groups, half of the teachers were compelled to spend more than they made. These statements may be criticized from the standpoint that teachers ordinarily are not in debt. If, however, the expenses of the summer have to be borne by the teacher rather than by her family, the chances are that she will, in a majority of cases, begin the year in debt. In one of the groups 67 per cent of the teachers were compelled to spend more than 100 per cent of their incomes. This, in a way, is confirming evidence of the con- clusions drawn from the study of the cost of "board and room" in Chapter I. Study 8 of Table LI gives the median increase or decrease in per cent of total salary spent for total expenses, and shows a more con- sistent and larger decrease in per cent of salary spent than was shown for living expenses in Study 4. Other things being equal, this may be interpreted to mean that the per cent of the total salary spent for recreation, professional advancement, etc., was smaller in 1918-19 than in 1917-18. Two elements probably cause this difference: first, the curtailment of all expenses which were not necessary, both because of higher costs and in order to invest in the war loans, and, second, the necessity for estimating the expenses for the coming summer as to travel, self-improvement, etc. It is noteworthy that in Section B in all the groups, a decrease in percentage of salary spent is shown, and that the decrease compares very favorably with the returns from other wealthier sections. This indicates a widespread tendency in cities of all sizes in this section to improve salaries, even tho they yet remain relatively low when actual salaries are considered. Study 9, Table LI, on the median number of years' schooling above the 8th grade, shows the median amount for elementary teachers to be 6 years, 7.5 for intermediate teachers, and 8.3 for high school 74 NATIONAL EDUCATION ASSOCIATION teachers. These medians are a little lower, generally, than the stand- ards set by the superintendents for election at the present time, except for intermediate teachers. This median is materially raised by the presence in the intermediate schools of a large number of college graduates, even tho the minimal requirement is set lower by most superintendents. Studies loa and lob, Table LI, are very unsatisfactory, and, as given, somewhat misleading. The medians as given represent the median bonus received by those teachers who received bonuses during the year, and does not show the very large majority who did not receive any bonus. The medians as given will have to be studied in comparison with Table LII. TABLE LII SUMMARY OF BONUSES RECEIVED 1917-18 AND 1918-19. (Data received from answers given to the questionnaire to teachers.) Total number of teachers Number receiving no bonus Per cent receiving a bonus Average median bonus 1917-18 1918-19 1917-18 1918-19 1917-18 1918-19 1917-18 1918-19 Elementari'. . . Intermediate. . High School . . . 5556 454 788 5556 466 811 4759 403 692 4634 405 698 14.7% 11.0% 12.1% 15.5% 13.1% 13.9% $24.90 36.00 98.40 $ 46.77 32.50 101.10 This shows that 85 per cent or more of the teachers answering this question did not receive a bonus. With this fact in mind the question of bonus received is almost a matter of no consideration, since even for the few teachers receiving a bonus the median sum is very small — not exceeding $74 in any group, except for the high school teachers. There seerns to be no distinct testimony for any city size or geo- graphical group to grant more or larger bonuses than the other group. A very slight tendency might be said to exist in Group E. The sporadic cases of granting bonuses to adjust the salary problem may be considered as having made almost no contribution when the whole teaching population is considered. A bonus as ordinarily given to teachers is a philanthropically inspired and begrudged donation to an underpaid and long-suffering group of public servants, in order to tide them over a period of financial stringency. It is given without appre- ciation of the work done or the deserved reward, and implies the desire to keep teachers on the present schedule rather than to make a perma- nent advance in salary. Studies iia and lib of Table LI give the median "additional incomes" earned during 1917-18 and 1918-19. This additional income, as askt for in the questionnaire, is for "tutoring, evening school, summer work, writing, lecturing, etc.," and the medians given are lEACtlERS- SALARIES AM) SALARY SCHEUULES 75 only for those who earn an additional income. The medians, as in Studies loa and lob, must be interpreted in the light of Table LIII. TABLE LIII SUMMARY OF ADDITIONAL INCOME EARNED 1917-18 AND 1918-19. (Data received from answers given to the questionnaire to teachers) Total number of teachers No. Earning no ad- ditional income Per cent Earning an additional income Average Median additional income 1917-18 1918-19 1917-18 1918-19 1917-18 1918-19 1917-18 18- Elementary. . . Intermediate. . High School. . . 4684 420 879 4801 460 909 3891 337 559 4205 406 663 16.9% 19.8% 36.4% 12.4% 11.7% 24.6% $91.38 133.75 122.30 $87.96 63.33 98.33 According to these returns only one teacher in five has any addi- tional income, and for this one-fifth the median amount is below $ioo in most of the groups. From this it would seem that a majority of teachers give their entire time to teaching and use the summer to rest and regain energy and enthusiasm. An examination of the salaries of the teachers earning additional incomes will show a wide range in the distribution, but does not show the usual bunching of cases about the median point. There are in many of the groups two modes, one below the median with more cases in the $500 and $600 salary groups, and the other above the median, centering around $1,200. The first group is probably driven to lucrative occupations during the vacations by force of necessity. The second is probably due to the spur of ambition and the more numerous opportunities which come to the teachers receiving the higher salaries because of their greater ability or their better preparation. There seem to be no distinct sectional influences upon the matter of additional incomes. It is more truly an individual matter in most cases. Study 12 shows the median age of teachers. The size of the city affects the median age, which decreases as the size decreases, due undoubtedly to the greater prevalence of tenure of office regulations in the larger cities. There is no evidence of geographical influence upon the median age of teachers. If the median age in the size groups be considered in relation to the median experience, they show that the teachers, as indicated by the medians, began teaching about their 20th year of age. This does not allow time for much maturity, nor for professional preparation. Since practically all of the teachers in the elementary and intermediate schools are women, it is possible to com- pare the results here with those obtained by Coffman ^ in 1911. At that time he found "the typical American female teacher is twenty-four 1 Coffman. "The Social Composition of the Teaching Population." Teachers College Contribution to Education, No. 41. 76 .\A'J'JU.\AL EDL'CATIOX .ISSOCIAflOA years of age, having entered teaching at the early part of her nineteenth year, when she had received but four years' training beyond the ele- mentary schools." If the typical teacher is determined in the same way from the medians found in this study, an advance is found in all three items. The median age is three or more years more and the length of experience and the amount of preparation are both over two years higher. Since Cofifman's data was obtained principally from rural teachers, while the data of this study is more truly representative of city conditions, this difference can not be construed as an advance but rather as a contrast between urban and rural conditions. Studies 13 and 14 were made, but the results were not of a nature to yield to the same treatment as the other items studied. -The question of how many teachers have others dependent upon them is a much discust one, but few studies of existing conditions have been made. In tabulating the answers it was necessary to evaluate the burden represented by having one person "partially dependent" as compared with "one person entirely dependent." The judgments of several school men were secured, and it was finally arbitrarily decided that, as ordinarily reported, one "partial dependent" would represent about one-fifth of the financial burden of an "entire dependent." This was applied only when a teacher reported persons both entirely and par- tially dependent, e. g. a teacher reporting 2 persons entirely dependent, and 4 persons partially dependent, was listed as having 3 persons en- tirely dependent (fractions were used to the nearest unit). In this way no teacher was recorded more than once. The results of the answers are given in Table LIV, in the percentages of teachers having others dependent upon them. The returns are arranged by size groups, and the relation of dependents to salary received may be inferred from the median salaries of the groups. TABLE LIV PERCENTAGES OF TEACHER.S SUPPORTING OTHERS, EITHER ENTIRELY OR PARTIALLY. Arranged for the Size Groups and for School Divisions. Total % % having % having % having % having % having having no one 2 or more one 2 or more dependent* de- entirely entirely partly partly either pendents dependent dependent dependent dependent entirely or partially Elementary: Group I 35.1 17.2 12.0 18.0 17.6 64.9 Group n 52.1 16.9 7,1 13.6 10.2 47.9 Group ni 55.1 10.5 3.6 17.8 13.0 44.9 Group IV 56.6 10.5 4.6 14.8 13.4 43.4 Group V 62.2 11.7 3.7 12.4 10.0 37.8 Group VI 63.2 9.0 3.4 14.5 9.7 36.8 Intermediate: All Groups 57.0 12.7 7.4 14.1 8.8 43.0 High School: H S. Women (all groups) 58.2 9.8 3.9 16.6 11.5 41.8 H. S. Men (all groups) 12.3 16.8 57.2 3.5 10.2 87.7 TEACHERS' SALARIES AND SALARY SCHEDULES 77 This table answers rather definitely the question whether teachers as a class have others dependent upon them. Forty-six per cent of elementary teachers, 43 per cent of intermediate and 42 per cent of high school teachers have others either entirely or partially dependent upon them. More than half of the dependents reported represent partial dependents, which does not make the financial burden as heavy to carry as the percentages might indicate. It does, nevertheless, make it evident that teachers as a class are not free from the responsibilities of having others dependent upon them for support. There seems to be no other explanation for the regular decrease in the percentage of teachers having dependents, shown in the last column of Table LIV, than that the corresponding decrease in salaries as the size of the cities decrease makes the support of others financially impossible. Every other column in the table adds weight to the same conclusion. Not enough men reported from the elementary and intermediate schools to make the comparisons possible, but in the 1,310 replies from high schools, 775 women answered the question on dependents, and 285 men. This made possible the separation of the men for a separate tabulation. The results show that only 12 per cent of the men who reported from high schools were not supporting dependents. The 57 per cent of men teachers in the high school who are supporting families of "two or more" dependents indicates that men teachers will under- take family responsibilities if the salary will in any way permit. Seventy-four per cent of the men have one or more people entirely dependent upon them. This is from three to six times as large as the percentage in any other group. The next highest percentages are in Group I, where the salaries are also higher. It is obvious from Table XLVII that the present salary schedules are directly or indirectly responsible for the rapidly declining number of men in the work of teaching. PART II. Salary Situation as Shown by Coefficients of Correlation Betv^^een the Items Studied and the Salaries Received. Another way of showing how the salaries of the teachers in the various groups were influenst by and related to the items studied in Part I of this chapter, is to express the closeness of the relation (or "going togetherness") of the two items under consideration by a single index known as the coefficient of correlation (represented by "r"). Those used in this chapter were found from the 651 correlation tables similar to Table L by a modification of "Sheppard's Method of Unlike Signs."' Coefficients of correlation found bv this method are in a ' For description of method used see Appendix TIT. 78 NATIONAL EDUCATION ASSOCIATION way only approximations, but they are reliable enough to show the presence or absence of a distinct tendency when any such exists. Where the distributions were irregular in any way or heavily buncht upon the median step the coefficients were checkt by using Pearson's "Coefficient of mean square contingency."^ In this way it was shown that with the data used, the modification of Sheppard's Formula gave results which were reliable enough for detecting tendencies. They are, however, not reliable enough to make comparisons betzveen two groups when the "r'" values are for example .10 and .25 or even where greater differences exist. In tables LV and LVI these coefficients are arranged according to groups, school divisions and items studied and give the results in a form to facilitate easy comparison with the data^ in the companion table LI of Part I. Only general and obvious conclusions will be made from the data presented in Tables LV and LVI. Study I, Table LV. A high coefficient of correlation exists between "total teaching experience" and "total salary received" during 1918 and 1919. The coefficient decreases with the size of the city and is rather uniform as far as geographical groups are concerned. This confirms the statement that the larger cities hold their teachers longer and pay them better. Studies 2a and 2b, Table LV, show a markt positive correlation between "amount spent for personal living expenses" and "total salary received." There is no consistent variation due to geographical loca- tion or to size of cities. The coefficients indicate that the larger the salary a teacher receives, the more she spends for personal living expenses, which in turn could be made to show that the majority of teachers are living on a level lower than is desirable for them, both from the standpoint of personal desire and efficient work. As a result, an increase in salary goes merely to provide more comfortable room or more desirable board, more prompt medical attention and more adequate supply of necessary clothing, rather than to savings, profes- sional advancement, recreation, etc. Studies 3a and 3b, Table LV, give very small negative coefficients between per cent of "total salary spent for personal living expenses" and "total salary received." This indicates a slight tendency, which is consistent thruout the size groups, for teachers receiving the highest salaries to spend a smaller percentage of the salary for living expenses. The very small coefficients indicate that there is so little lee-way between the salary received and the percentage of that salary spent ^ For description of this method and the resuhs of its use see Appendix III. litems 10, II, and 14 are not included in this table as the returns were either too fexv to be used or not in a form to he readily correlated. ■^ TEACHERS' SALARIES AND SALARY SCHEDULES 79 for living expenses that even differences of $200 or $300 between groups do not influence the coefficients. Study 4, Table LV, on the relation of the increase or decrease of the "per cent of salary spent for living expenses" in 1918-19 over those of 1917-18 and the "total salary received" developt absolutely no consistent relationship. In other words it was a matter of pure c'lance whether those receiving higher salaries increast or decreast the percentage of their salaries spent for living expenses. Studies 5a and 5b, Table LV, result in insignificant positive coeffi- cients between the "amount spent for recreation, professional advance- ment, etc.," and "total salary received," which would indicate that those receiving higher salaries not only are able to spend more on self improvement, but are slightly more apt to do so. Studies 6a, 6b, 7a, 7b, and 8, Table LVI, produce coefficients which substantiate the findings of studies 2a, 2b, 3a, 3b, and 4 except that if possible they show even more clearly that under present conditions, it is necessary for a teacher to spend practically all of her salary for her "total necessary expenses," regardless of how much that salary is or where it is received. Study 9, Table LVI, for the relation between "total numbers of years schooling above the 8th grade" and "total salary" furnishes a decided upset for any preconceived notion that additional schooling is always rewarded by additional salary. The presence of negative ( — ) coefficients, some of them large enough to indicate strong cor- relation in many of the groups, shows that for those groups the teachers receiving salaries above the medians tend to have "years of schooling" below the median amount. This is truer in the larger cities, where the higher salaries are received by teachers of longer experience who entered when standards of preparation were lower, while the younger teachers who have prepared more thoroly are teaching at beginners' pay. There is no section where any consistent correlation is shown, and except for cities in Size Groups I and II, the average of the coefficients is so low that "mere chance" is the governing rule. This, however, shows a condition which is worth the serious consideration of teachers and school men, because addi- tional schooling should represent an investment with more certain returns than "pure chance." Study 12, Table LVI, gives the coefficients of correlation for teachers' "age" and "total salary received" (1918-19) and shows a distinct relation between age and salary. It pays to grow old in the work of teaching, and especially in the larger cities. The average of the coefficients for size groups decreases as the size of the cities decreases, but the "r" value is large enough to be significant even 80 NATIONAL EDUCATION ASSOCIATION o O O H O g Q O O u < Q ^g < td W Id X H Q o . E-i m W§ ZQ 2j H O « o >-' o w H o to Q W 5 H en S H .2 [0 (U ^ > 0>tNOr'5a. ^ M o p o u s ..... 11 1m q q vofo OMOio ©■"OtsO ..... 1" q ■B csqqqt»5 HI 00 ..... li o o Oin ..... s Hi q ro >0 Ov •<*' <0 ^!Nqr;»H q ■a roqq-^(N II 1 Increase or De- crease of 3b over 3a (4) ..... !l in q § roaOtNO — lO OlM O ■ 1 11 q Hi O 1 (NOO"Ove> Or^O-H© If 1 II q Ht o 1 W bo •*OOOsOt^ OtS tN — — 1 1 1 1 1 ii q t*) —' (s -< tr> 1 1 1 1 1 11 q •N 1 -< f«5 lO ■'»' 00 r»50CNrO(S ■ ■ If 1 q HI T 1 f 1 1 1 11 HI to 1 00 -^ .^ O O r-1 r ■ 1 1 q T f*l f^ fO ^ 00 CS OO^fS 1 ■ ■ 1 1 ll q ■fl uo \OO\>O00 ■ 1 1 1 1 ii q HI T ro CM tMOO 1 1 1 1 1 Ij q Ht T bC I 5^ >0>ov00>0 «0 r~. lo .* (N q -« lOOOOOrOTC •n '^j -* r- «; ll u q ■fl (S lO O^ CN '*5 ^ ^ iDt^ ^ ^ **5 11 q fl ^ 00 00 o o \0'*>oio>q II u q HI o 00 Tf 00 O^'^lO \0 ■*'^'^ tN q ■« o >C OC '-< « Ov vO "C t^ -o to q ■« a re — "1 lO ^ T); f^ cs ■* ll o hi' •* ii 1m q H( Total Teaching Experience (1) loro •* c> 00 C t^_ O; 00 vO q 00 COOOW >/1 q ■« 00 ^ \o ^ »o <*> o ■ HI lO t^ — •* Oi ■* q Hi' Q 3 O |2 si > < < < >>>>> 0>0 >>>>> 0 OO ^5 lO PO f) f^ >>>>> ce a a> o a> I- 3 " h =^ _C (30 ^ C3 33 .^ i; E 0) sz NATIONAL EDUCATION ASSOCIATION Q O u u < Q w o z OS w <5 ^^ 2° HZ w< ^2 2> o o W o qh H z w H 09 00t»5rO^>O o fMOvrO O^fO ■* 00'*-H>O'* ^ t^OvOOO — e of cher 12) 00 00 00 00 lo Ovu^oooor-; © VO to >0 o li Tt ■" t-> V. w 2 6.5 •H-*00<^ lO \0'<* ■*©>'> 2 <»5»H00mro •H vO vOt^CS VO No. Yea Schoolin Above 8 Grade (9) 1 1 f 1 1 o •H -H •* t»5 ■* (N 1 1 1 1 ■ q 1 1" ©lO « fS •" ■ 1 ■ f 1 q ■« u 1" :i 1 Ui r~ M 1 f^OLO »OlO Tj* ■* U^ fO <*) ^ Ov vOOOOv vo>o t^ VO (NU^Ov q i> in 00 O^-IIM-H q Orjiw^O q -H'*0'->H q OON — -H 11 4! a " \ +1 ..... 41 ■ If ■ 1 4i W Cl JJ ^ VO M 2 ^ lO \o fN i Ji o 1 o 1 ![ li 1' U u f u, \ u 1 c u 1 \ ix £ ^O-HW^ 3 ^ lOCSfO«0 N Ov>oin (sm tn rtt^'^lHlO PO Oi ^ '^ ^ ^. "^ q ro CN P*^ ^ ^ q »<-H ts ts ts q r»)C^ wj tsui q -«-> *-< ^^ i' r r r r r r r r r ' r r r t* 1' t* i' 1 r 00^ Mill +1 Mill II 1 1 +1 •* Mill 4| VO '^ 1, O) cs . II PC u f ti f u f u f 13 g- 1 1 1 1 •—"rt ro ^ ^ ^CN •* \^ <^ t^-^ ^ q ^f^iO <-(\o r«5iOf^'>tvO vo'Ofjf^ •* to s *-• ■ 1 *o >o 'i VO l-l w u t^ a cS rt ovso*rj -^ fo vO rtl^ ro q !>* *C or^ r^ q O ^'t? C^''' +; 4: tI o>"^ fN 10 •0 u lO - - lO Ih I^ a 3 o P 5 «>>>> .■ s s W """"" W Oh 08 Oh c8 •a > <:cQoQw > 3h < < < < TEACHERS' SALARIES AND SALARY SCHEDULES 83 00 Ot^ro q 1! q ■H o 1 to ii !-• '' u " ? o o ■ ■ 1 1 1 q 41 o ii '^ t-i u 1 1m l-l v .... II o ■fl o 1 ■ ■ 1 1 il o ■H o Ov fo il u U 1 U "" (N 0> ■>t fN CN O « (N 1 III Ii q ■+I (T) On >>>> <0QCJQW W da > < < 0» .2 m * « Q " h 3 m^ £ oO MS £^5 _ (-> ^ -, (J •- «J S aw o s-« ° 8 •r) cd 5 fc* .- *j Q an ig;S8S| OJ Ih 1-1 ^ O NATIONAL EDUCATION ASSOCIATION in the groups of smaller cities. The correlation is consistent thru the several geographical groups. CONCLUSIONS— CHAPTER II General 1. The returns from the teachers' questionnaires show the salaries to be about the same in almost all groups as that given in Chapter I from Superin- tendents' Reports. 2. Decrea.se in the size of the city is accompanied by decrease in the amount of the salary. - 3. Sectional differences are found to the same extent as in Chapter I. 4. Salaries of teachers are entirely inadequate to meet the standards demanded and the economic conditions existing during the two years studied. 5. As judged by the answers of teachers, they are meeting the requirements outlined in the reports of superintendents, they are making more adequate preparation for their work and they are staying in the work longer. These are signs that teaching is tending toward professionalization. Specific: Study i. — Total Teaching Experience a. The larger the cities the longer the teaching experience. b. Location has less influence on experience than size of city. c. There is a high correlation between salary received and length of experience. It decreases with the size of the cities. Study 2a and ab — Personal Living Expenses a. Living expenses decrease as the size of the cities decrease but not as rapidly as the salaries paid. b. Differences in amount of personal living expenses due to location arc less than those due to city size. They are generally higher vi'here the salaries are higher. c. Personal living expenses increast almost as much as salaries increast between 1917-18 and 1918-19. d. There is a distinct positive correlation between the amount spent for living expenses and salary received. It is not affected by size or location of cities. Study 3a and 3b — Per Cent of Salary Spent For Personal Living Expenses a. Teachers are spending five-sixths of their salaries for necessary per- sonal living expenses. b. There is only a slight increase in per cent spent as the cities decrease and as the salaries become consequently smaller. c. There is a small negative correlation between the amount of the salary and the per cent spent for living expenses, indicating that the h-'gher salaries spend slightly less for living expenses. The fact that the correlation is so slight, indicates that all salaries are so low that even the higher ones do not have a margin for saving, but are all needed for necessary expenses. Study 4 — Increase or Decrease in Per Cent of Salary Spent For Living Expenses in 1918-19 Over 1917-18 a. There was practically no increase or decrease in 1918-19 over 1917-18. This indicates that the increases given to teachers were not more than enough TEACHERS' SALARIES AM) SALARY SCHEVLLES 85 to meet the increases in living expenses. This was true for all groups, size and geographical. b. There is no correlation between salary received and an increase or decrease in per cent spent by individual teachers on living expenses. Study 5a and 5b — Amount Spent For Recreation, Professional Advance- ment, etc. a. The median amount spent by teachers per year for recreation, profes- sional advancement etc. is less than $75. On the basis of 25 per cent for "higher life" this much should be spent from a salary of $300. b. $75 per year might well be spent on periodicals and library additions alone, and is entirely too small for either recreation or professional advance- ment (other than reading). c. The amount spent for these items is uniformly small in all groups, both size and geographical. d. Only an insignificant positive correlation exists between the salary received by teachers and the amount spent for these items. Study 6a and 6b — Total Expenses a. Total expenses decrease as the size of the cities decrease. b. Between groups, total expenses vary directly in proportion to the salary paid. c. For individual teachers, the higher salary the more the total necessary expenses. This is true for all groups. Study 7a and 7b — Per Cent of Salary Spent For Total Expenses a. In 85'>"'' of the groups during the two years the median per cent of salary spent for total expenses was 90'^ or over. (Efficiency and budget experts give I07c as the least margin for net savings). b. A noticeable negative correlation exists between salary received and per cent spent for necessary expenses, indicating that the smaller the salary the larger the per cent of it used for these expenses. Study 8 — Increase or Decrease in the Per Cent of Salary Spent for Total Expenses in 1918-19 Over 1917-18 a. Increases given to teachers and curtailment of expenses for recreation and professional advancement produced a small decrease in the per cent spent for necessary expenses. b. There is no correlation between salary received and an increase or decrease in the per cent spent for necessary expenses in 1918-19 over 1917-18. Study 9 — Years of Schooling Above the Eighth Grade a The median number of years schooling above the 8th grade is over six, seven and eight for the elementary, intermediate, and high school respec- tively. b. From the negative coefficients found between salary and schooling, especially in the two largest groups, it would seem that there is an association of higher salaries with fewer years of schooling. 86 NATIONAL EDUCATION ASSOCIATION Study loa and lob — Bonus Received a. Over 85% of the teachers reported receiving no bonus. b. The average bonus of the few teachers receiving them during the two years would not exceed $35, (Elementary and Intermediate). c. The granting of bonuses is a temporary adjustment and was resorted to only in a very few cases. Study iia and iib — Additional Income Earned a. Only about 20% of the teachers reporting earned any additional income. b. For the 20% earning additional income the average amount earned would not exceed $100. Study 12 — Age of Teachers a. The median age for teachers increases as the size of the city increases, b. . The median age of teachers is approximately 30. c. Teachers are more seriously preparing themselves for the work of teaching and are tending to stay in the work longer. d. There is a distinct correlation between age and salary received. The older teachers are more apt to receive the higher salaries. Study 13 and 14 — Dependents Supported by Teachers a. A larger percentage of teachers support dependents as the size of the city increases with its accompanyingly larger salary. b. Individual teachers support more dependents in the larger cities than in the smaller places. c. About the same percentage of women teachers report dependents in each of the divisions, elementary, intermediate and high school. d. Among high school teachers, a much larger per cent of men support dependents than do the women. e. Nearly 60% of the men high school teachers support families of two or more entire dependents. CHAPTER III. The Salary Situation in the United State as Shown by Letters From State Superintendents As a result of the National Education Association's campaign and the sharp realization on the part of teachers of the need for better salaries, there was almost nation-wide agitation on the question dur- ing 1918-19. In order that teachers may have the benefit of knowing what has been considered and what has been accomplisht by the legislatures of the various states, a letter was sent by President Geo. D. Strayer to State Commissioners and Superintendents of Public Instruction, asking them to report any bills on the question of teachers' salaries which were past by their State Legislatures. They were askt to report any legislation then pending as well as any noteworthy actions by local school boards in meeting the situation. Answers were received from 37 states, and will be arranged in the same geo- graphical groups which have been used in the remainder of the study. Group A — Connecticut Connecticut proposed the granting of $3.00 per pupil in average attendance. This would bring a material increase to salaries, but has not yet been approved by the Governor, because all of the increase v/ould not go to teachers' salaries. Another bill was proposed which would give state aid to districts in proportion to their valuation, so that the state would carry 75 per cent of teachers' wages for some of the smaller places, and from, that down to 20 per cent. Secretary Hines writes "teachers' salaries in this state are very generally increas- ing from 10 to 30 per cent. We anticipate a state increase of 15 to 20 per cent." Delaware A New School Code was establisht for Delaware, granting material increases in the salaries of teachers. State Commissioner Spaid reports that "the State makes an annual appropriation to cover the entire expenses, including railroad fare, of the teachers who wish to attend summer school for a period of six weeks within the State, and gives to certain other teachers a lump sum of $50.00 to help defray their expenses at any standard summer school without the State." Massachusetts Commissioner Payson Smith of Massachusetts is strongly support- ing a bill now pending in the State Legislation to provide state subsidies for teachers. For each person employed for full-time service for 12 months as superintendents of schools, the city or tf)\vn shall be X7 88 NATIONAL EDUCATION ASSOCIATION reimbvirst by $750 if the superintendent's salary is not less than $1,800, and reimburst by $500 if the salary is not less than $1,500. For teachers employed for full time, the city or town shall be reimburst by $200 for each teacher having received a salary not less than $850 : $150 for each teacher having received a salary not less than $750 (with limiting conditions upon professional training, etc.) and $100 for each person having received a salary of not less than $650. Sub- sidies for part-time superintendents and teachers will be paid accord- ing to the above plan, and in proportion to the time served. Provi- sion is also made in the bill to provide supplementary reimbursements according to the per pupil valuation of the different cities or towns, ranging from $300 for per pupil valuation of less than $2,000 to $50 if the per pupil valuation is less than $4,500. but not less than $4,000, with the intermediate steps in proportion. New Hampshire New Hampshire past a bill providing for the establishment of a State Board of Education and the standardization of teachers' salaries. Deputy Commissioner of Education, Harriet L. Huntree, says "there is no definite statement of a minimum salary. It is generally under- stood, however, that the rural school teachers will receive at least a minimum salary of $15.00 a week, but no legislation so states." New York One of the most significant pieces of salary legislation, because of the standards set and the number -of teachers involved, was the state- wide teachers' bill past by New York. For New York City a minimum wage for teachers of kindergarten and the first six grades of $1,005 ^s provided with a maximum of $2,160. In grades 7, 8 and g. the minimum becomes $1,350 and the maximum $2,700. In high school salaries of regular teachers range from $1,350 to $3,150. First assistants in high schools begin at $2,650, and reach a maximum of $3,650. For cities of the first class, with populations less than one million, the minimal salary is set at $800 for elementary teachers, and $1,200 for high school teachers. For cities of the second class the elementary minimum is $800 and the high school minimum is $1,000. The bill also provides that every school district shall make a salary schedule providing in districts of the first and second class, at least eight annual increments above the minimal salary set. Pennsylvania The "Woodruff Salary Bill" was past at the last session of the State Legislature. This bill provided for a general increase of teaeli- TEACHERS' SALARIES ASD SALARY SCHEDULES 89 ers' salaries thruout the State and, according to Acting Superintendent Koch, has tb.e hearty support of teachers and of the people. Rhode Island Commissioner Ranger reports that the "Rhode Island General Assembly enacted legislation that aims to raise the teachers' minimum salary from $400 to $500. The new act is not mandatory in establish- ing the $500 minimum. It offers to towns that increase salaries previously lower than $500, one-half of any increase not exceeding one- half the difference between the salary previously paid and $500." "Most of our school committees have increast salaries during the current school year and several have increases for next year under consideration." Group B — Alabama Superintendent Dowell writes that "there is a general sentiment favorable to the increase of salaries, but no bill has l)een presented to the Legislature, and so far as I know none has been prepared. It may be stated that all boards of education are prepared to increase salaries to the limit of available funds." Arkansas Superintendent Bond reports that "Our Recent Legislature did not pass any special legislation affecting teachers' salaries. I may say in this connection that our annual school election was held recently. From reports coming into this office, it seems that practically all dis- tricts, both urban and rural, are voting the full tax limit." This is the result of a vigorous campaign in the interest of increast local taxes and higher salaries which was conducted by the State Department of Arkansas during the last year. Florida No legislation was enacted in Florida at the last session on the subject of teachers' salaries. State Superintendent Sheats thinks "County Boards generally, thruout the State, are making strenuous efforts to raise salaries. Some have raised them 10 per cent, some as much as 25 per cent, and others have raised them higher. I will say that nearly every County Board in the State is raising these salaries of teachers all their financies will possibly warrant." Georgia Several bills on teachers' salaries, as well as other educational sub- jects, were pending in the State Legislature at the time of Superinten- dent Brittain's letter. The Forty-seventh Annual Report of the Department of Education to the General Assembly of the State of 90 NATIONAL EDUCATION ASSOCIATION Georgia gives many interesting facts relative to the salary problem in that State. It gives the following average monthly salaries paid during 1917-18: Grammar Grades 1917 1918 Average monthly salary paid white male teachers $63.00 $70.00 Average monthly salary paid white female teachers 47.12 52.36 Average monthly salary paid colored male teachers 31.61 34.72 Average monthly salary paid colored female teachers 22.73 26.12 High School Grades 1917 1918 Average monthly salary paid white male teachers $101.00 $109.75 Average monthly salary paid white female teachers 65.00 70.61 Average monthly salary paid colored male teachers 46.71 51.87 Average monthly salary paid colored female teachers 28.63 31.77 From the same report we learn that "Thousands of the best and most energetic men and women left the school room at the call of busi- ness and for much larger salaries." This shows the acuteness of the salary problem in Georgia brought about by the fact that the land is assest at about one-fifth of its value, and that the amount of per capita tax for school purposes is the fourth lowest in the United States. A bill is also pending to provide for prompt payment of teachers with- out having the salaries which average but a little over $300 discounted. Schools and teachers lose $50,000 annually by having their warrants discounted. Kentucky Superintendent Gilbert states that the minimal salary of $50 a month was establisht for first class rural school teachers, and that several city Boards of Education within the State are very materially increasing their salaries. The Board of Education of Louisville, in order to insure a supply of teachers to begin the year, increast the salaries by from 8 to 33 per cent. These increases were graduated inversely according to the salaries received. Louisiana Superintendent Harris states that the Constitution w'as amended in the fall of 1918 in a way to very materially increase the school funds. Much of this increase would go toward the bettering of salaries. A suggestive schedule of salaries for teachers was adopted, which will be used as the basis for the fixing of teachers' salaries for the session of 1919-20. Salaries outlined are minimum, and in perhaps a majority of the parishes the annual salaries paid will range considerably higher. The schedule for elementary grade teachers is as follows : 1. Graduates of standard normal schools: the first year of teaching expe- TEACHERS' SALARIES AND SALARY SCHEDULES 91 rience, $70 a month; second year, $75; third year, $80; fourth year, $85; fifth year, $90; eleventh year and thereafter, $100. 2. Teachers holding first grade certificates, $10 a month less. 3. Teachers holding second grade certificates : $50 a month without any annual increases. 4. Teachers holding third grade certificates : $40 a month without any annual increases. Mississippi No legislation has been recently past in Mississippi. Superinten- dent Bond is hopeful that the next Legislature will more adequately provide for teachers' salaries. He states that "Some of our Local Boards of Trustees have made $1,200 a year the minimum for grade and high school teachers. There is a tendency to put all such teachers on a twelve months salary basis, giving them thirty days oflf dur- ing the year, and employing them for half time during the rest of the time the school is not in session, to coach all those students that failed to pass on the last session of work." North Carolina State Superintendent Brooks reports three educational advances for North Carolina, "The six months minimum school law," "The County Budget" and "The Minimum Salary Law." This law provides that a lo per cent increase in the salaries of high school teachers is given, with the provision that nothing in this section shall make it com- pulsory upon the County Board of Education to fix the monthly salaries of high school teachers higher than $75 a month. It also provides that in complying with the requirements that budgets be prepared, that increases should be granted teachers ranging from 25 per cent to 10 per cent, depending upon the work done and certificate held. It was, however, provided that nothing in this section shall make it compulsory upon the County Board of Education to fix the monthly salaries of teachers for any school larger than the following: 1. "For inexperienst teachers, a salary not larger than the average salary of 1918-19 of the teacTiers in the county holding the same grade certificates. 2. For teachers of successful experience of two or more years holding elementary certificates, $65 per montli." South Carolina Superintendent Swearingen reports that high school salaries were raised so that the lowest paid high school assistant received $75 per month instead of $55 — an increase of 30 per cent. The $75 was increast by $5 for each of the two succeeding years of experience. An Act of 1919 provides for salaries of elementary school teachers as follows : "An assistant teacher holding a first-grade certificate shall be paid not more than $60 per month ; an assistant teacher holding a second- 92 NATIONAL EDVCATION ASSOCIATION grade certificate shall be paid not more than $50 per month, and an assistant teacher holding a third-grade certificate shall be paid not more than $40 per month." "In any district the board of trustees may pay lower salaries in their discretion ; but such lower salaries shall always constitute the basis for calculating any deficiency to be made up from the funds provided under this Act. If the salaries paid teachers in any district exceed the salaries herein authorized, the total amount of the excess must be applied by the board of school district trustees, either by private subscription, or by a higher rate of local taxation. Any dis- trict running its school longer than seven months must also pay the cost of the eighth month, or of the ninth month, by private subscrip- tion, or by a higher rate of local taxation." Texas State Superintendent Annie Webb Blanton reports three measures aflfecting teachers' salaries recently past by the State of Texas : First — "For the purpose of promoting the public school interests of rural schools and those of small towns, and of aiding the people in providing adequate school facilities for the education of their children, $2,000,000, or such part thereof as may be necessary, is hereby appropriated out of any money in the State Treasury not otherwise appropriated for the school year ending August 31, 1920, and $2,000,000, or such part thereof as may be necessary, for the year ending August 31, 1921, to be used in accordance with the provisions of this Ac't in aiding rural schools and those of small towns." Secondly — The prompt payment of teachers without discount, and. Thirdly — Equal pay for men and women in the State schools of the State. Virginia At the legislative session of 1918, the amount appropriaied f)y tht- State for teachers' salaries was increast about $800,000. Superin- tendent Hart hopes that the next session of the Legislature will provide local increases to teachers' salaries amounting to appro.ximately 25 per cent. GROUP C Illinois The State ^f Illinois has a hill pending which will make S700 per school year of 36 weeks the cf)mpensati()n rate at w liicli all u acliers in the public schools must be paid. This Act dues not api)Iy lu any school district levying the maximal amount of taxes authorized by law. TEACHERS' SALARIES AND SALARY SCHEDULES 93 Indiana Superintendent Hines reports that the multiples for determining the wages of teachers have been increast 25 to 30 per cent. The School Board at Whiting, Indiana, has establisht $1,000 as a minimal salary for all grade teachers, even beginners. Michigan No bills were past by the last Legislature uf this State, but a very active campaign has been carried on by the State Teachers' Association for the betterment of salaries in that State. A bulletin, "Teachers' .Salaries in Michigan," pviblisht by the State Teachers' Association, has been largely instrumental in improving the salary situation thruout the State. Some of the larger cities, particularly Detroit, have establisht salary schedules very much in advance of past years, while some of the smaller places, such as Monroe, have establisht a minimal salary of $1,000. Considering that the average salary of Monroe was $735, this represents a noteworthy advance. Ohio Assistant Superintendent Riegel states that "Boards of Education generally are increasing salaries of superintendents and teachers. In some cases the salaries are double what they were three or four years ago." A bill was under considerjition in the State Legislature which would provide a salary schedule for elementary teachers ranging from a minimum of $60 per month to $75 per month, according to the amount of experience, and also providing that all schools should be in session for eight months. GROUP D Iowa The State of Iowa recently past a minimum wage law which, according to Superintendent Deyoe, may be regarded as a decided step in advance for better teachers' salaries in Iowa. This law- financially recognizes the differences in amount of preparation. A teacher who has completed a four-year college course and received a degree from an approved college and who is the holder of a State certificate shall receive a minimum v,^age of $100 per month, and after two years of experience, the minimum wage shall !)e $120 per month. A teacher who has completed a two-year course in the State Normal School shall receive a minimum of $80, which after two years' successful experience shall be $100. A teacher who has completed a normal course in a normal training high school and has less than one year's successful teaching experience sliall have a mim'numi wage of $65 per month. 94 NATIONAL EDUCATION ASSOCIATION which after additional training will be increast to $75 and then $80 per month. A teacher who is the holder of a second-grade county- certificate shall receive a minimal wage of $60, which after one year of successful teaching experience becomes $65, while a teacher holding a third-grade county certificate shall receive a minimal wage of $50. Minnesota Superintendent McConnell states that "No laws relating to teachers' salaries were enacted by the last Legislature, but salaries have advanst at least 40 per cent over 1914, and at least 10 per cent over last year. The advance has been general thruout the State, and I have not been informed of any action taken by any particular school board." Missouri The State of Missouri past a bill which provided a 50 per cent increase for county superintendents and gave serious consideration to another bill which provided material increases for teachers' salaries ranging from $65 to $100 per month. The latter bill, however, was defeated after much favorable discussion thruout the State. There is a general tendency to increase the grade teachers' salaries. St. Louis and Kansas City led in this movement, with increases of approximately 25 per cent to their teachers, whereas we are informed by Rural School Inspector Harrawood that Sedalia, Joplin, Poplar Bluff and Jefferson City increast teachers' salaries from 10 to 20 per cent. North Dakota According to Assistant Superintendent George A. AIcFarland, the salaries paid in the better graded schools were increast to $90 or $110 per month. The salaries of county superintendents were also increast from 50 per cent to 70 per cent, with an additional increase in mileage. Oklahoma Assistant Superintendent Collette reports that no bills were past at the recent session of the Legislature affecting the salary of teachers. The State Board of Education, however, authorized a 10 per cent increase in the salaries of those teaching in the State normal schools. "Local Boards of Education thruout the State are increasing the salary for the next school year ; I think the general increase would average about 15 per cent." South Dakota Superintendent Shaw replies as follows : "I regret to say that no legislative action regarding teachers' salaries in this State was past at our Legislature which adjourned on March TEACHERS' SALARIES AND SALARY SCHEDULES 95 /th of this year. Teachers' salaries in South Dakota have been increast about 20 per cent over the salaries paid last year, but no legislation concerning the matter was past." GROUP E Arizona No legislation affecting teachers' salaries was past at the last session of the State Legislature. "A bill, however, was introduced, providing for a minimum wage of $1,200, but failed of passage." Superintendent Case reports that some of the local school boards have made increases in salaries as high as 25 per cent. California Backt by school organizations all over thte State, a vigorous cam- paign for increast school taxation and better salaries for California was successfully waged during 1919. It resulted in the passage of a bill increasing the State allowance per pupil from $15 to $17.50. Another bill increast the State apportionment of school funds- from a basis of $250 to $350 per teacher, while a third bill provided that the county apportionment should be increast from $13 to $21 per pupil, and fixing $550 as the amount per teacher to be raised by local taxation. Colorado Colorado salaries were increast by 20 per cent for teachers in third- class districts, and a minimal salary of $75 per month was establisht for teachers in the first- and second-class districts, according to the report of Mary C. C. Bradford, Superintendent of that State. Idaho No laws were past which distinctly establisht standards for teach- ers' salaries. There is, however, a general movement over the State to increase teachers' salaries, and make them more commensurate with the costs of living. Several of the smaller places, among them Black- foot, Nampa, Pocatello and others, have establisht schedules which will provide for minimal salaries of $1,000 with liberal maximal sal- aries above that. A campaign for better salaries is being conducted by iMiss Redfield, State Superintendent. Many more cities are expected to meet this standard for the next year. Montana Miss May Trumper, Superintendent of Public Instruction, reports that no legislation was past in Montana which directly influenst salaries, with the exception of a bill providing for "equal pay for equal work for men and women." The teachers of Butte. ^Montana, however, were 96 NATIONAL EDUCATION ASSOCIATION successful in securing a $300 increase in the salaries for next year, in addition to a $100 bonus for the salaries of the present year. This will give for Butte a minimal salary of $1,000 for grade teachers, $1,400 for junior high school teachers, and $1,600 for senior high school teachers. New Mexico "The salaries in New Mexico for the school year beginning Sep- tember, 1919, will run from 30 to 40 per cent higher than last year," is the opinion of Superintendent Wagner. Special provision was also made in New Mexico for rural schools and a law was past providing a salary schedule for them as follows : "The amount which may be expended by any rural school district, where no such graded school is maintained, for all purposes except the construction, purchase. lease, repair or equipment of school houses, shall not during any school year exceed the sum of seventy dollars ($70.00) per month per school room in which a teacher holding a third-grade certificate is employed nor more than ninety dollars ($90.00) per month per school room in which a teacher holding a second-grade certificate is employed nor more than one hundred and ten dollars ($nO.(X)) per month per school room in which a teacher holding a first-grade or higher certificate is employed." Oregon Superintendent Churchill reports the passage of a minimal salary bill for the State of Oregon, which makes $75 per school month the legal minimum for any public school teacher. He also reports various increases in the salaries of the teachers in the cities within the State. Noteworthy among these is the increase in the Portland schools, where by a special election on May 10 an increase of $531,000 was voted by the school district of Portland to be spent exclusively in increasing teachers' salaries. This will give each teacher in the service a flat increase of $40 per month or $400 per year over the present schedules, and will make the minimal salary for beginning teachers in Portland $1,200. Washington Mrs. Preston writes that Seattle has made a minimum of $1,200 for grade teachers and $1,500 for high school teachers, with maximal salaries of $1,800 and $2,100 for the two divisions. "Tacoma has increast its tax levy four mills in order to meet the increast demand for salaries for its teachers. In fact, all of our first-class districts are meeting the demands and just as many of our second- and third-class districts as can do so." Wyoming Mrs. Morton, State Superintendent, says that no bills past the recent legislature concerning salaries, but "in a number of the coun- TE.^ICHHRS' SALARIES AM) SALARY SClUiDiJLliS 97 ties of our State there is a uniform arrangement whereby a minimum salary for rural teachers has been fixt. The mininuini in tliree counties is $90 per month, and in Sheridan county the minimum is $100. There seems to be a movement that is sprcadinij over the State to make a provision such as this." CONCLUSIONS 1. There is nation-wide realization that teachers' salaries are too low, and that adjustments must be made in larger units than the single district or city. Of the 57 States replying to President Strayer's letter, 20 of them have past (within the last two years) laws regulating teachers' salaries, and 7 of the remainder have had bills on this subject under legislative discussion. 2. There is a distinct awakening to the fact that elementary teachers, and more particularly rural elementary teachers, are most in need of immediate financial relief. Not until the rural schools can compete financially with the larger districts is there much hope that they will ever be more than the dumping ground for inefficient teachers or the training schools for city systems. 3. A national consciousness of the part played by the schools during the war, accentuated by the appreciation of the part they are to play in the period of reconstruction, and the crowning realization of their potentiality for good or evil in the period of social and industrial unrest, has made lawmakers al) over the country give school legislation a first place on the calendars of legis- lative assemblies. 4. An ever-growing realization that the results of public education depend in a large measure upon the efficiency of the teachers, has provokt much legis- lation, resulting in increast standards of preparation for teachers. This has inevitably led to the providing of better salaries as the final means of "enforcing" the added requirements. 5. Recent legislation on teachers' salaries in a great majority of cases has been instigated at least with the cooperation of school men and teachers' organi- zations, and has been on a much more intelligent and liberal basis. Heretofore, salary laws were too frequently prompted by anything but altruistic motives. 6. Each section of the country is making about an equal effort to improve the conditions of its teachers, but they are far from securing equal results. An examination of the results accomplisht in some of the States in Group B, in comparison with standards set and paid for in States in the other sections, is one of the most conclusive arguments for federal aid to education in the United States. CHAPTER IV TEACHING AND THE ECONOMIC SITUATION Part I.. Economic Aspects of the Educational Emergency The present emergency in education is a direct outgrowth of the financial exploitation of teachers, and no permanent corrections can be made until teachers' salaries are very materially increast. Other causes for this emergency are given and, when analyzed, prove to be merely statements of the salary problem, in different words, or from a different angle. Other reasons are given, such as inadequate sup- port, inequality of burden, shortage of teachers, and untrained teachers. Inadequate support is a question of salaries since 57 per cent of the money expenses for school purposes in the United States in 1915-16 was for salaries, and it is a higher percentage now. In- equality of burden is almost entirely a question of salary since the big differences arise there rather than in cost of buildings, school supplies, and operating expenses. A serious shortage of teachers does exist and has been an important element in the present emergency, but practically all teachers who have left teaching for reasons other than marriage, ill-health, or old age. did so for positions paying better salaries. Teachers are untrained, but the graduates of all the public and private normal schools are not more than one-sixth of the new teachers needed each year, and yet very few of the normal schools are carrying their capacity number of students. The rewards of teaching do not encourage the expenditure of time and money in professional prepara- tion. This will also account for the shortness of the teacher training courses, being in most cases only one or two years. The training of teachers is influenst not only by the prospective lack of salary for the students but also by inadequate support of these normal schools, particularly in the salaries of the normal school teachers. Few States have a salary schedule for their normal schools which will bear comparison with the salaries in the better high schools of the State. As a nation we spend as much per student per year to educate any high school pupil or any boy in a reform scliool as we do for the training of a teacher in a normal school. We spend nearly twice as much for a pupil in a deaf school, more than twice as much, for a college or university student, three times as much for a blind student, and nearly four times as much for the training of a feeble- minded child. ^ Probably the two reasons why the question of teachers' salaries is educationally paramount at the present time are ( i ) salaries have not ' From Table VIII, Commissioner of Education Report, Vol. II, 1917, page 25. 98 TEACHERS' SALARIES A. YD SALARY SCHEDULES 99 kept pace with the increast cost of Hving, and (2) teaching is so poorly paid in comparison with other Hnes of work that it has suffered tremendously by competition. The opposites of these two statements are frequently claimed to be true and used as arguments against measures for the better support of schools or the increase of teachers' salaries. It behooves all teachers to know /jozt.' true they are, which the comparisons in this part of the chapter will show. A. Teachers' Salaries and the Cost of Living Have teachers' salaries advanst, and if so, how much? Table LVII will show^ that during the last twelve years the average salary for all the teachers in the United States has increast from $381.77 to $630.64, an increase of 65 per cent — "A tremendous increase! What an ungrateful lot of money-grabbing Croesuses the teachers of the United States must be to have such an increase in salary and still be waging campaigns for more" exclaims the self -pitying and near- sighted taxpayer. What does an increase of 65 per cent mean when based upon such a salary for 1906 as $381.77 ($31.80 a month) ? TABLE L\'II AVER.A.GE ANNUAL SALARIES FOR TEACHERS (MEN AND WOMEN) IN "STATE SCHOOL SYSTEMS" FOR THE UNITED STATES AND FOR THE FIVE GEOGRAPHICAL DIVISIONS FOR THE YEARS 1906-07 TO 1915-16* United North North South South Western Year States Atlantic Central Atlantic Central 1906-07 S3S1.77 S567.4S S373.86 S 235.73 S239.59 S535.95 1907-08 414.87 581.36 436.56 232.13 260.04 550.27 1908-09 442.89 648.07 457.07 292.38 293.92 558.31 1909-10 488.20 611.06 468.08 281.88 320.48 576.25 1910-11 466.40 604.04 480.29 303.91 332.60 607.63 1911-12 491.62 651.24 499.18 308.34 345.84 668.46 1912.13 511.86 668.52 523.22 327.19 354.29 709.13 1913-14 524.60 696.25 537.45 328.88 360.06 699.03 1914-15 543.31 727.28 557.78 333.58 366.60 734.00 1915-16 563.08 728.56 569.65 342.39 413.58 797.47 1918** 630.64 ♦From Reports of the Commissioner of Education. **From Estimate of Commissioner of Education, N.E.A. Bulletin for April 1919, pg. 14. Such a salary is a relic of days when teaching was a side issue to some other occupations, requiring little or no preparation, continuing for intermittent periods of two or three months according to the season and the weather conditions and not expected, in any case, to be a total means of support. It was rather a means for the stay-at- home girl to make a little "ready money" and have in addition the "peace of mind" which is the reward of the missionary and the social worker. xA.nother side of this story is that while the teacher's salary has increast 65 per cent in twelve years, it is not the only thing which has increast. The cost of her schooling, the cost of her clothes, her 100 NATIONAL EDUCATION ASSOCIATION room and board, in other words, her entire expenses have by no means been left behind in the race toward higher prices and increast costs. Not only have they not been left behind, but they have been able to so skillfully maneuver for positions that the teacher's salary has been hopelessly defeated by the other competitors in this race. How much additional preparation can a teacher afford, how much better can she live, how much more optimistic can she be in her teach- ing even if her salary has increast 65 per cent within the last ten years. when she realizes that within the same period the cost of living has more than doubled so that her 65 per cent increase is in reality almost a 20 per cent decrease. In this age of economic enlightenment almost every occupation except teaching has learned that there is such a thing as a "standard of living," that this standard of living has a direct effect upon the health, happiness, and efficiency of the worker and his family, that this standard varies by occupations and by localities, that there is a minima] level below which it is socially unsafe to force people to live and lastly, that wages must be considered not from the point of view of actual amounts but in regard to what can be obtained for them. The keeper of a boarding house in a \^'estern normal school town was heard to remonstrate upon the State's extravagance in the pay- ment of its normal school teachers. vShe complained that they were paying some of them almost twice as much as they did ten years before that. In that same ten years the price of board in her home had in- creast from $2 per week to $5. This tendency of juggling school ex- penditures by comparisons with the past, rather than the scientific forward look which is the basis of all modern budget making, has too long prevailed. School men are, themselves, largely responsible for this attitude. They have practist it and allowed its use on them and their problems until now it has become a habit of the i)ublic mind in all school measures. Any means would be justifiable which would break up this habit, and the campaign of education cannot start too soon. Teachers should realize and they inusf see to it that the people realize that salaries ought to provide for the coming year, not the one just past. They must provide also for additional preparation at future intervals, for a standard of living necessary for teachers and for a small margin of saving. The only use of past conditions should be to guide in making this estimate of future needs. Of v\"hai value is an increase in a teaxrher's annual salary of $20, $22.50, $45, or even $75 or $100 (which range will include 95 per cent of the increases given) when all of this increase, and often more, will be needed for the additional cost of room and board alone? TEACHERS' SALARIES AND SALARY SCHE DULES 101 "Durinj^ the five-year period between October 1913. and October 1918, food as a whole was 75 per cent higher in 1918 than in 1913."' The wholesale price of every article increast 54 per cent or more, while five articles increast over 100 per cent (corn meal 119 per cent, lard 115 per cent, bacon 108 per cent, flour 103 per cent, and pork chops 102 per cent). The close of 1918 found the index numbers for all wholesale prices over 200. an increase of over 100 per cent since 1913, with an average for the year of i96-|-- What percentage, or even fraction of a per cent, of the teachers of the United States were receiving in November, 1918, more than twice as much as they were in October, 191 3? Or we might be still more modest and ask what fraction of a per cent of the teachers of the country had had increases of salary in that time which had kept pace with the loii'cst percentage of increase for any article of food, namely 54 per cent. Chart III gives a graphic representation of the mal-adjustment be- tween teachers' salaries and the wholesale prices of "All Commodities" from the years 1906 to 191 8. It shows how conservatively teachers' salaries have kept the even tenor of their way, with no regard for the tremendous increase in the cost of living. Some near-sighted penurious "watchdogs of the public funds" are saying: "Prices are abnormal now and will drop at once. Let the teachers bear their part of the increast cost as a patriotic duty, until things readjust themselves." \Miy didn't these same people object on the same grounds to the increases given to railroad employes, to the workers in their factories, to the farmers for their wheat? If patriot- ism consists in being economically exploited, how could these same objectors bring themselves to accepting higher prices for their goods or services? Are we making a wise investment when the teachers of the coimtry are living on such a close margin that statements like the following are common : "I am buying a $50 Liberty Bond each year, so shall not be able to attend summer school until they are paid for." "I put the money for my magazines into War Savings Stamps?" Martha and Robert Bruere,- writing in 1913. say: "We are there- fore eliminating from consideration in this book all families whose incomes, either in money or its equivalent, are less than $1,000, because we are convinst that no supplemental expenditure of brain and muscle can enable them to rise to the level of social efficiency." And again: "$1,200 is more nearly correct than $1,000 as the financial minimum for social efficiency." This standard set for 191 3 would have to be nearly doubled to meet the need of 1919. Assuming that not all the ' Bureau of Labor Statistics, Monthly Review. J.anuary, 1919. - Bruere Increasing Home Efficiency, page 27. Macmillan. 102 NATIONAL EDUCATION ASSOCIATION J^ ZZQ JJO ISO no liQ -SSL CHART III CHART SHOWING THE RELATIVE INCREASE IN TEACHER'S SALARIES AND THE COST OF LIVING AS SHOWN BY WHOLESALE PRICES FOR THE PERIOD BETWEEN 1906-1918. Solid line represents the increase over the preceding year in average annual salary for all teachers in the United States. Data taken from Table LVII. Dotted line at end covers period between 1905-16 and the figure for 1918. Broken line represents the increase over the preceding year of the index numbers for the wholesale price on all com- modities. Data taken from the monthly Reviews of the Bureau of Labor Statistics. — .^z' -ZSL €0 6 ^& bis ^ ^0 ^f vE 7 3 yC vb" VJ6 m V8 TEACHERS' SALARIES AXD SALARY SCHEDULES 103 budget items need to be increast at the same rate as food, rent, etc., it would be a safe approximation to say that these figures, instead of being $i,ooo and $1,200 in 1918-19. would be at least $1,800 and $2,000. This is setting a standard which many will call too high, but it involves the social efiiciency of a family and not of a single teacher. For several reasons we must begin to think more in terms of a com- pensation for teachers which will permit the support of a family. The holding of any other position in the face of the growing tendency for "equal pay for equal work," much strengthened by the war, would mean the automatic elimination from the work of teaching of men, particularly men desirous of family responsibilities. Omitting the question of social efficiency — a term as yet indefinite and much debated as an aim of education and as a standard of living — a teacher can live, i. e., remain physically alive, on much less than $1,800, or even $1,000 — the tentative standard set bv the N. E. .\. In fact, this feat is being yearly done by approximately 20,000 teachers on less than $500 a year, while several thousand of these jugglers of human destiny do it on less than $300. Unless this last figure is supple- mented by some other form of work, these teachers live on $5.75 a week. Imagine the budget of such a teacher. Start with $5.75 for the week, provide for board, room rent, laundry— the items which must be met every w^eek — and plan to save enough for clothes, shoes, the trip or trips to the county institute, a newspaper, magazines, dentist and doctor bills, and set aside the remainder for a quiet rest during part of the summer, or a summer course at the State normal school, an occasional trip to some nearby spot of historic, scenic, or civic interest, a few small donations to friends, church, or charity, and some margin of savings to be invested in a Liberty Bond or deposited in a savings bank. Long before the above, none too adequate, list of expenses are met in this imaginative budget we are made to realize that these thousands of teachers in all probability are compelled to prepare their own meagre and monotonous meals, they do all their own laundry, make many of their clothes, and wear what they do have until they are noticeably behind the mode and worn to shabbiness. They will have to have sound teeth and good health and forego all sources of professional advancement or recreation. They must sufifer the constant mortifica- tion which comes from inability to assist with the support of religious and social activities in the community and deny themselves the privilege of forming the "thrift habit of saving" which they are expected to teach. The National War Labor Board, in an exhaustive inquiry into the cost of living in Schenectady, set $15 as a minimal weekly amount 104 NATIONAL EDUCATION ASSOCIATION upon which a girl can Hve. About 60 per cent^ of the teachers of the country are teaching this year for less than the ^780 which this minimum calls for, to say nothing of the expenses which a teacher must meet which are not necessary for the worker in a factory. Only about 20 per cent of the teachers of the United States receive a salary of over $1,200, the minimum for social efficiency set in 1913, and if this were raised to $1,500 for 1918-19, there would be but about 6 per cent able to reach it, while if it were raised to Si, 800 it would reduce this percentage to but 25^ per cent. In no other work is the 7imximal efficiency of the workers more necessary than in teaching, and yet by national niggardliness we make it impossible for about four out of every five of our teachers to reach even the minimum of efficiency, with the maximum far out of reach even for most of these more fortunate few. The American people are expecting more of teachers now than ever before and many of these expectations are along lines which cost teachers more to meet than at any previous time, and yet teachers' salaries are lower in purchasing power than they were 12 years ago. The answers received from teachers at work under present conditions^ indicate that the median percentage of salary used for necessary expenses is very nearly 100 per cent, of which only about 15 per cent was spent on expenses other than "personal living expenses." The condition Js shown in another light when total expenses are computed from the cost of "room and board" as given by the superintendents in 310 cities, and compared with the maximal salaries offered in the same cities (Table XLIII). In 48 per cent (practically one-half) of the cities reporting, the teachers would be compelled to spend 100 per cent or more of their salaries in order to live. This means that no matter how long the teachers in such cities continue in the work, no matter how much extra training they take, they cannot hope for a maximal salary which will defray expenses without cutting down the standard of living. The condition would be infinitely worse if we assumed that teachers should have the same margin for savings on their investments which we take for granted in all other investments. Salary schedules for teachers must be revised and in the light of present demands upon teachers and the present cost of living. B. Are Teachers Better Paid than Other Workers? There are several reasons for the popular idea that teachers are "well-paid holders of easy jobs, with easy hours, and long vacations." a. Teachers' salaries are usually divided into eight or nine install- ^ An estimate based on the Distribution of salaries for 1918-19, as given in Table IV, pagc-^iS. - "Studies -a and 7b" in Chapter II, page 73. TEACHERS' SALARIES AND SALARY SCHEDULES 105 inents and consequently seem from 25 to 33 1/3 per cent higher than they really are. b. Salaried people are always adjudged better off by wage earners, because $75 a month sounds better than $18.75 ^ weel: or than $3.12 a day. c. Six hours a day seems to many people to be a small number of working hours. This compares very favorably with the hours kept by business men, lawyers, bankers and others, and Vk'ith the growing tendency of several of the labor unions to advocate six- and even five- hour days. But when from two to four hours is added for "home work" in preparation for the work of the next day (ever a new situa- tion to the progressive teacher), the teacher's day becomes longer than that of most workers. d. Teachers have long vacations, but living expenses go on during those vacations just the same and often increase if the teacher spends part of the time in self-improvement. If she has to turn to some other form of work it isn't a vacation, and if she doesn't she usually begins the school year in debt, and so reduces her income for the next year. c. Teaching has never entirely recovered from the idea that it is a good occupation for the local boys and girls to follow who can board at home and consequently work for' less salary. These and other points of view give an erroneous idea of the adequacy of teachers' pay. Assuming that teaching is a profession (the amount of training required does not as yet justify this assump- tion, but the tendency is decidedly in that direction), it is interesting 10 compare the salaries of teachers with other professions. The aver- age salary for all teachers in the United States in 1918, according to the Commissioner of Education's report, was $630.64. The median salary of 76,775 teachers in elementary, intermediate, and high schools in 320 cities over 10,000 population in 1918 was only $869.34.' The ministry is seldom, if ever, cited as a highly paid profession, and yet the median salary for Episcopal clergymen in this country in 1918 was $1,218.50,^ between $400 and $500 more than the median salary for teachers, without considering the additional value of a free parsonage. 'ilie Massachusetts Institute of Technology took a census of the three classes of 1893, 1894, and 1896 ten years after graduation and found the median salaries to be $3,410, $2,430, and $2,540.^ Almost no salary schedules, even for high-school teachers who have as much or more training, provide for a maximum salary at the end of ten vears equal to the lowest of these median salaries. 1 N. E. A. Bulletin on Teachers* Sahiries in 1918, page 58. - Preliminary Report of the Joint Commission on the Support of the Episcopal Clertfj ••Technology Review for 1915. 106 NATIONAL EDUCATION ASSOCIATION TABLE LVIII INCOME STATISTICS OF GRADUATES IN ENGINEERING FROM A WESTERN STATE UNIVERSITY* Year- Out of Number Highest Income Lowest Average Income Per Cent Above Per Cent Below College Reporting Income Average Average 1 166 $ 4,000 $ 150 $ 884 40 60 2 152 7000 400 1,115 28 72 3 136 4,000 300 1,225 34 66 4 119 4,500 600 1,379 31 69 5 94 5,000 420 1,498 32 68 6 80 4,000 600 1,596 48 52 7 73 3,400 720 1,697 48 52 8 63 5,000 650 1,786 47 53 9 53 7,000 840 1,996 38 62 10 50 8,300 1020 2,296 30 70 11 43 10,300 800 2,530 28 72 12 34 13,200 800 2,819 26 74 13 35 20,000 900 3,127 21 79 14 30 40,000 900 3,927 13 87 IS 31 33,000 1,000 3,884 13 87 16 28 21,800 800 4,252 11 89 17 25 27,500 ** 3,440 16 84 18 23 37,000 1.000 4,671 13 87 19 21 27,000 1,500 4,663 19 81 20 17 23,000 2,000 5,946 24 76 21 17 33,000 2,100 7,734 29 71 22 16 42,500 2,100 8,006 19 81 23 16 46,000 2,000 7,687 25 75 24 13 33,500 2,100 8,172 23 77 25 10 14,800 2,100 4,630 30 70 26 7 13,500 2,100 4,671 14 86 27 5 19,700 1,500 6,340 20 80 28 5 22,500 1,500 6,980 20 80 29 3 4,200 3,000 3,567 33 67 30 3 4,500 3,000 3,833 67 33 31 3 4,500 3,000 4,075 75 25 32 3 4,500 3,700 3,983 33 67 33 2 5,000 3,700 4,350 50 50 34 1 5,000 5,000 5,000 35 1 5,000 5.000 5,000 *From Engineering News, Sept. 9, 1915, p. 505. ♦♦Indefinite loss reported for this year. The class of 1908 of the same school took a canvass of its members in June, 1910 — two years after graduation — and from 126 replies found that the median salary was $1,206. A year later, from 141 replies the same class had a median salary of $1,409. Table LVIII, showing the income statistics of graduates in engi- neering from a Western State university, tells a story very unlike the one which a similar table for teachers would tell. In this table it is easy to see a high positive correlation between salary and experience, with an average annual increment of $200 for each of the first fifteen years. Table LIX gives the average annual earnings of medical graduates of Harvard University since 1901 by years after graduation, as well as the earnings of the graduates of its law courses according to the number of years out of college. The median salaries for teachers in Section A, which would correspond most nearly v/ith the salaries of Harvard graduates, is $823 for elementary, $999 intermediate, and $1,139 high school. TEACHERS- SALARIES AND SALARY SCHEDULES 107 TABLE LIX AVERAGE ANNUAL EARNLNGS OK MEDICAL GRADUATES OF HARVARD UNIVERSITY.* Years of Practice 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1 $866 S 7x7 $ 541 $ 362 $ 625 $ 502 S 355 $ 533 $ 425 1237 ■ 827 1089 790 995 773 826 588 1250 874 1083 w ^ 1181 1539 1412 1295 995 1262 1353 1025 1370 1578 * 4 . 1505 1694 1720 1566 1559 1765 1963 15 S 1632 1835 5 2027 1556 1966 1981 181X 2359 234 7 1847 2150 6 2.341 1837 2333 2277 2.<47 2997 3202 2360 7 2527 2161 2654 2967 3043 3650 3545 8 3003 2491 3155 3042 3337 4332 9 3560 2900 3616 3604 4500 10 3524 2963 4135 4535 11 3885 3691 4604 12 4422 4130 13 4680 Max. No. of Men 38 39 29 39 33 26 29 29 25 26 ♦From Training Rewards of the Physician "Cabot." Figures compiled from Harvard Lfniversity in 1914 on the average annual earnings of Lawyers and Doctors. Years out of College 1 2 3 4 5 6 7 8 9 10 No. of Replies (1) 694 664 623 609 1110 909 497 1645 1301 411 2150 1681 317 2668 2005 249 3118 2410 162 3909 2935 112 4426 3227 62 5321 3636 40 Law-ive earn- ing Med.-ave. earn- ing 5325 3789 (1) No. of replies only for Iaw>'ers. Chart IV gives the average yearly compensation of 4,650 members of the American Society of Civil Engineers by geographical location and in five-year periods of experience. It makes an interesting but not very cheerful comparison with the situation shown in Table \TII, showing the median salaries of different sections of the United States. The discouraging contrast presented by these figures from other professions would be softened, we are told, when we compare teachers with the workers outside of the professions. This is in a way as unfair to teachers as the other comparison, since in this comparison we shall have to disregard the thousands of teachers who are sufficiently trained to be called professional. Table LX shows the union scale of wages in a number of occupa- tions in the larger industrial cities in each of the geographical regions. The cities were selected by taking the data for the first two cities reported in each section and may be considered typical, since the unions tend to standardize the wage and so offset industrial differences or differences in location. Comparing the average^ wages from Group C, since they are be- low the median and consequently conservatively safe, with the salary ' Average found for each item for the two cities representing the group. 108 NATIONAL EDUCATION ASSOCIATION CHART IV $11000 flOOOO S9000 S8000 $7000 $6000 SoOOO $4000 $1000 AMERICAN SOCIETY Of CIVH ENGINEERS DIAGRAM SHOWING AVERAGE YEARLY COMPENSATION Of <650 OF ITS MEMBERSHIP GROUPED GEOGRAPHiCALLY IN FIVE-YEAR PERIODS ACCOMPANYING THE PROGRESS REPORT Of THE SPECIAL COMMITTEE to INVESTIGATE CONDITIONS OF EMPLOYMENT Qf AND COMPENSATION OF CIVIL ENGINEERS DECEMBER. 1914 No. Of Replies 647 839 354 810 1608 456 4000 GENERAL AVERAGES Goographical Distribution SoutlTern States Western States New England States Central States Middle Atlantic States Foreign Countries Total General Average Average Yearly Compensation 3717 4028 4200 4333 5300 $4100 SllOOO $10 000 5900*3 S8000 $7000 $0000 S5000 S4000 S3000 S2000 $1000 1-5 6-10 Years of Experience 11-15 16-20 21-25 26-30 31-35 38-40 o£ elementary teachers, it is seen that it is worth, per year, $394 more to carry bricks than to train children, $363 more to mould dough for bread than to mould boys and girls into citizens, $890 more to ham- mer hot iron than to hammer ideals, and $1,024 more to build frame- works for buildings than frameworks for characters. These are all occupations requiring relatively little training. Most of them are learned by a pay-producing apprentice system, which is much shorter in duration than the 6 to 8 years above the elementary school which TEACHEKS' SALARIES AXD SALARY SCHEDULES 109 M-ao ^ « i- r-» f^O oeo r^ CO otN 00 1^ •H »^ •-) > o 00 t~o OOO 0000 «o C. o> 10 (^ rot^ i^ tN tNOC J^C r^ <-^o F "3 «^ ■^ ^H t-t "-• CN »-n-< tH cs ^^ 1-1 — Q ^ ■<-, -« fO 00=0 00 C ro re c« S3 00 C>"* -J.-, fO t^ rr t^ r^ a 3> «J .„ c 10 o> TtfO CO t^ Ov>0 rfu- "~, 00 C-- = .£■0-^ 09 .5 a<5 — cs fe .2; r. CV C^ CN Q "" c^. 00 10 "O 000 oo> f-O 00 PC '^ — ^ in—i — ' 10 PO Ov — <^ 1 10 10 Ov CSI-- r~OC 00 or* .5 = n C5 6? ^ •a re OCO C CN 00 Ov t~.!> t^lO » ■* i^ w, •010 ITilO -ftn 10 o>-* rt 0 I/-, c tNOC o-x 00^ I s -r. cs OJ "rt u r~ cv t^ Cfl U 00 00 00 — "a 3 03 C •* o< •<* MV5 ■*CN in-o t^lO rf 1/5 rf ■*"1 ©■•* ro vO "O vOt^ --0( 00 1>- vC S2 c S " to CI C f ro O) VOV3 r~i- Ore t^O 5 S \o lO 0- 1/^ — 00^ w r^ Ov-H 00 •*t-. Mr^ r^ i/i 1^ ^0^- S* " c! CQ re «N EQ r~. re re r~ 00 C •0 3 ""^j ^ c OC c-g-o occ TjT*- r.ire Ti. a >o t O'Ti >-vC t «- Ct-- rj<0 1 d 10 cs oo> t^ u- — f^ OU- t>. •no < 1 ~M K t"* r>. •^1' vovc PO tN ©<»• CN r~0 t « 00 ■* OC — Ot-- 00 — s > 2n 1/: t-* «5 vO u^ u- Tj-t^ is <* 5 2 < re C> Ov _ c»i c^ re X 0^ ■— OC r^ 000 - re ac tn CN OIN rOOC O-vC U-) t-.. 00 VOO 'c; «0 '^ *— ^ *H *- '^ yt »- « -^ 1 ij . .1 aj ..do • tn C m c; 5| :| u BS c-5 C ii x; J^ ".E _c ^ c : c •^ £ C w 0— . .2 c ^^ ^ "o ^ iU 2 • 3 3 u 1 r C T s R £ 1 i u 1-4 C |> II c a 0. X C 2 3 3 1 ^ 'E TO .2 ^'^ a ■" c.5| rt S : _ c c 0.0 S 2^ 1 c C Ss c ^ & ^ s 1 s s S ^ rt M „ ::3 .^ a: ■^ «J & >. H.2 '^ ■0 cO . Pi c rt ^ x> K5 rt .Si 03 S H" s <9 3 J?c E C C .»' • T2 0* no NATIONAL EDUCATION ASSOCIATION CHART V CHART SHOWING COMPARISON OF TEACHERS' SALARIES IN SECTION "C" WITH THE UNION SCALE OF WAGES FOR CERTAIN OCCUPATIONS IN THE SAME SECTION. AS INDICATED BY THE AVERAGE OF THE WAGES PAID IN CHICAGO AND CLEVELAND. SALARY IN HUNDREDS OF DOLLARS Machinists Elementary Teachers 1. Section C includes Ohio, 111., Ind., Mich., and Wis. 2. Taken from Table LX. are demanded of teachers in most of our cities and many of our States. The longer preparation demanded of teachers is also wholly a period ■ of expense, since it is becoming so exacting of time that it is relatively impossible to follow any gainful occupation during the period of preparation. The Department of Labor made, during 1918 and 1919, a very thoro investigation of the living conditions of the workers in ship- j TEACHERS' SALARIES AXD SALARy SCHEDULES 111 building cities over the United States/ These cities included four of the five geographical districts used in this salary study and so furnish an accurate basis for comparison. Except in the Southern section, the average salaries do not show much variation, due, undoubtedly, to the effect of government regulation. These salaries, while they cover the expenses of families, represent the earnings of individuals and are higher in all cases by from $300 to $650 than the median salaries for elementary teachers, and higher by $250 to $350 than the median sal- aries of high-school teachers in all sections except the far western. The average for all these workers is $1,411, more than double the average salary for teachers of the United States. Comparing this average with the average salary for teachers in cities of over 100,000 and between 50,000 and 100,000 population, since a majority of the cities used in the shipbuilding study fall in these classes, we find that the ship-yard worker received $475 (51 per cent) more per year than the elementary school teacher. The $1,411 average salary for ship-yard workers is only $104 less than the median salary for high-school teachers in cities of over 100,000 and $129 more than the median salary for high-school teachers in cities between 50,000 and 100,000. The teachers in these high schools have spent a minimum of eight years above the elementary grades, representing an investment in time and money of $10,000 or $15,000, while many of the ship-yard workers did not finish the elementary school, with a vocational training period less, on an average, than one quarter as long as that of the high-school teacher. The investigations of the Railroad Wage Commission are par- ticularly significant for comparison with the economic situation of teachers. There were over two million workers included in the dif- ferent branches of railroad service and their work was very essential to the successful carrying on of the war. Consequently when the problem of adequate pay for the railroad workers was presented for settlement it was necessary that the matter be thoroly investigated and a settlement based on justice and sound economics be made. The report of the Railroad Wage Commission gives the results of a care- ful study of wages and the cost of living, and contains much which is of interest to teachers. The average annual salary for teachers in the United States in 1918-19 is $630.64.^ The average annual salary actually earned by all employees of all Class I railroads in the United States during 1917 was $i.oo6.-$375, or 60 per cent more than teachers received a year later. ^ In order to make them more comparable in point of time, the average annual salary of these railroad employees 1 Table XLI. pasre 112. -Report of the Bureau of Education. N. E. A. Bulletin, April, 1919, page 14. 3 Report of the Railroad Wage Commission, page 100, April 30, 1918. 112 A'^ TIONAL ED UCA TIOK A SSOCIA TION was calculated to be $1,137 for 1918/ provided the same number of men were employed for the year and at the rate they were receiving December, 19 17. This is $500, or 79 per cent more than the average for teachers. The true comparison has not yet been given, for there is the further consideration that the last figure does not include the increase in wages given during 191 8, which in many cases would cause the 79 per cent to become more than 100 per cent in excess of the average salary of teachers for the country. If the workers in the 16 lowest paid branches of the railroad service in 1918,^ shown in Table LXI, are compared with teachers in 1918, we find, when their 191 5 wages are increast according to the scale of increase^ adopted by the Railroad Wage Commission, only two groups receiving less than $700 a year, viz., "messengers and attendants" and "section men." These groups are $43.40 and $61.52 higher than the average salary for all teachers. Where will you find people who believe that teachers, who should represent a maximum of professional training in order to do their work well, should be compared with these two groups which represent, work calling for about the minimum of necessary preparation, or even intelligence to any great degree? Moreover, they have a membership recruited largely from boys, cripples, and old men for the one, and from illiterates and immigrant or cheap imported labor in the other. Thou- sands of these workers have not completed the elementary school. T.A.BLE LXI TABLE.SHOWIXG .'\DV.'\NCE IK SALARY FROM 1915 TO 1919 IN THE SIXTEEN LOWEST P.^ID BRANCHES OF THE RAILROAD SERVICE.* Occupation Salary Dec. 1915 Salary Dec. 1918. per month per year per m.onth per year 1. Clerks below $900 p. a. (except tele- grapher clerks S54.17 36.17 50.39 37.68 46.44 42.88 50.22 59.99 51.45 56.58 39.59 55.33 54.61 ■• 59.15 52.00^ 50.53 S650.04 434.04 604.68 452.16 557.28 514.56 602.64 719.88 617.40 678.96 475.08 [ 663.96 [655.32 709.80 ' 624.00 606.36 S77.55 56.17 72.60 57.68 67.21 62.88 72.60 84.60 73.70 80.377 ,S9.59 78.96 77.55 84.60 73.70 72.60 $9^0.60 2. Messengers and attendants 674.04 3. Mechanics' helpers and apprentices 4. Section men 871.20 692.16 5. Other unskilled laborers 806.52 6. Other men in const, gangs and work trains 754.56 7. Station service employees** 871.20 8. Yard switch tenders 1015.20 9. Other yard employees 884.40 10. Enginehouse men 964.44 11. Crossing flagmen and gatemen 715.08 12. Drav/'^ridge ooerators 947.52 13. Flo; ti ig equipment employees 930.60 14. Policemen and watchmen 1015.20 Is. Other transportation employees 884.40 16. All other employees 871.20 * From Report of the Railroad Wage Commission, April 30, 1918. Data for 1915 pg. 98; for 1918 pg. 20. **The following are excluded from this classification: Clerks, $900 p. a. and upwards: Clerks below $900 p. a.; Telegrapher clerks; Agent telegraphers; Station agents (non-telegraphers); Station masters and assistants; Policemen and_watchmen. 1 Report of the Railroad Wage Commission, page 102, April 30, 1918. =* Railroad Wage Commission, page 98, April 30, 1918. "Railroad Wage Commission, r^age 20, April 30, 1918. TEACHERS' SALARIES AND SALAR\' SCHEDULES 113 thousands are unable to read or write, and tens of thousands cannot speak the English language and have to be supervised by one of their own nationality, and yet they are better cared for financially than the teachers of the nation. The Pullman porter who during 191 7 received $40 a month and the bonus and extra salary from the company, had a salary of $568. This was increast by "tips" and reduction on meals until in many instances these men were receiving compensations amounting to up- wards of $1,000 — better wages by two or three hundred dollars than 400,000 teachers received during the same year. TABLE LXII NUMBER OF INCOME RETURNS FILED FOR 1916 BY CERTAIN OCCUPATIONS COM- PARED WITH THE TOTAL NUMBER OF PERSONS ENGAGED IN SUCH OCCUPA- TIONS, AS LISTED IN THE CENSUS OF 1910.* Occupations No. of returns filed in 1916 No. of persons as per census of 1910 Per cent filing returns Architects .Authors, editors, reporters, etc Clergymen Engineers, civil, mining, etc Lawj-ers and judges Medical profession, — physicians, surgeons, oculists, den- tists, nurses, and otliers Public service, civil Public service, military Theatrical profession, — actors, singers, musicians Teachers, — kindergarten to university, and school and col- lege officials Agriculturalists, — farmers, stockraisers, orchardists, etc. Real-estate brokers, agents, and salesmen Stock and bond brokers Brokers, all others , Commercial travellers Insurance agents and solicitors Lumbermen Manufacturers Merchants and dealers, storekeepers, jobbers, commission merchants etc Mine owners and operators Saloonkeepers Theatrical business, — owners, managers, etc Alll other business 1,419 2,529 1,671 6,628 21,273 20,348 2,992 5,459 914 2.919 14,407 6,146 2,839 7,479 12,274 7,243 1,319 23,631 59,363 2,554 1,311 811 18,605 16,613 8.54 38,750 6.53 118,018 1.42 58.963 11.24 112,149 18.97 291,942 6.97 382,138 .78 77,153 7.08 167,607 .55 614,905 .47 6,047,615 .24 125,862 4.88 13,729 20.68 36,016 20.77 268,522 4.57 88,463 8.19 12,263 10.76 235,107 10.05 1,246,077 4.36 14,287 17.88 68,215 1.92 31,418 2.58 101,868 18.26 *Treasury Dept., U. S. Internal Revenue. Statistics of Income, 1916, pg. 7 Table LXII, showing the number of income returns filed for 1916 by certain occupations, compared with the total number of persons engaged in such occupations as listed in the census of 1910, shows from another angle whether teachers are overpaid in comparison with other occupations. The number filing returns indicates the number who had for 1916 an income of $3,000 or over. Only one class has a smaller percentage filing income returns than teachers, and that is the "agriculturalists — farmers, stockraisers, orchardists, etc." This is explained by the fact that so much of the farmer's income is in growth of Stock, aging of trees, improvement of the land, and so little of it in money transactions ; that they receive in "economic value" — food con- .sumed, articles exchanged for — incomes in excess of estimates which are based entirely on money deposited and spent. 114 .WrnOX.iJ. EDiCATlOS ASSOC JATJOX According to these returns the chances that you — a teacher — might earn an income of $3,000 or over are about i^ times greater if you should become an actor, i^ times greater by entering pubHc civil service, 3 times greater in the clergy, 4 times greater for saloonkeeping, 5 times greater in the theatrical business, 9 times greater in store- keeping, commercial traveling or real-estate agency, 14 to 20 greater in publishing, medicine, military service, and insurance agents, and from 20 to 44 times greater in "any other occupation" of those making income returns. What a "pull away from teaching" facts such as these must have upon the ambitious man and woman, and how little "pull toward teaching" the people of this country are willing to give in the shape of adequate salaries ! The following wage scale when put into a yearly wage makes the median salary for elementary teachers in New York City $1,279 seem at least as small as it really is. * NEW WAGE SCALE ^ Prepared by Building Trades Employers' Association The latest scale of wages issued by the Building Trades Employers' Asso- ciation follows : Asbestos Workers, Insulators $6.40 Bricklayers 7.00 Carpenters, all Boroughs 6.00 Cement Masons 5.60 Composition Roofers, Waterproof ers 4.75 Elevator Constructors 6.80 Electrical Workers 6.00 Hoisting Engineers 6.50 House Shorers 5.00 Housesmiths, Structural 7.00 Housesmiths, Finishers 6.40 Marble Cutters and Setters 6.00 Marble Carvers 6.50 Metallic Lathers 6.00 Mosaic Workers 5.50 Painters 6.00 Plasterers, Brooklyn and Queens 7.00 Plasterers, other Boroughs 6.50 Plumbers 6.00 Sheet Metal Workers 6.00 Slate and Tile Roofers 6.50 Steamfitters 6.00 Stone Cutters 6.75 Stone Setters 7.00 Tile Layers 6.50 From the Xow ^'ork Times, M.Tv iR, tqiq. TEACHERS' SALARIES AND SALARY SCHEDULES 115 The lowest of these wages provides a salary which is $207.75, or 16 per cent, more than the median salary for elementary teachers, while the wage for bricklayers, housesmiths, plasterers, and stone setters is $812 (63 per cent) more than the teachers. LABORERS AND THEIR HIRE ^ Some Odious Comparisons with the Earnings of Educated Folk In our most expensive New England city, a decade ago, drivers of wagons or carts which transported coal from its storage yards to the sidewalks of the dwellings where it was to be burned workt ten hours a day, with Saturday half-holidays from April to October. They received from $12 weekly for a driver of one horse to $14 weekly for the driver of a three-horse truck. If the schedule of hours and wages which the drivers now propose — and propose to enforce — for the eleven months beginning May 1, 1919, goes into eflfect, drivers will receive from $24 to $30 for a week of substantially forty-four hours. That is, they will work eight hours a day except on Saturdays, when the day will end at noon. Ten holidays a year will be recognized, on which the men will rest at full pay, or will work at double pay, the same being true of Sundays. Overtime work in general will be paid at the rate of time and a half. A coal driver of the highest class in Boston, then, will receive a salary of $1,560 a year for working about as many hours a day as the average office worker, for less time than most teachers are required to give. Overtime might easily add to this the $140 necessary to bring it up to $1,700 a year. If we speak in terms of remuneration, we shall no longer speak of the man who drives the coal wagon with anything but respect. As for "coal heavers," their wages have experienst a similar advance, and they get $24 a week instead of the $9 they received twenty years ago. Comparisons, with their damnable iteration, are still necessary. The man who, after eight to ten years of continuous study above the so-called common school grades, graduates from the university, may fortunately secure a position as instructor in his college at $1,250 a year, this being on a new and "modern" schedule. If he is not satisfied with that remuneration he may take a six weeks' course in chaufif curing, and get a position at the wheel of a coal truck, which will pay him $1,500 and possibly $1,700 a year. Or, if he is an idealist, he may study three years longer and receive as a minister of the Gospel a salarv of $1,000 or $1,100 a year. This reprint from the Hartford Times appeared in the New York Times of May 18, 1919. During the present year many articles and editorials calling attention to the financial needs of teachers have appeared in the leading newspapers of the country. The Pictorial Review, the Literary Digest, the Independent, the Nation and others featured articles on this subject and widely advertised them. The fact that these important moulders of public opinion are interested in the schools and because of that interest, concerned about the pay of teachers, gives evidence that the financial exploitation of teachers bv ' From the New York Times. May i8, loiq. 116 NATIONAL EDUCATION ASSOCIATION an unthinking, because uninformed, public is about at an end. The purpose in making comparisons with wage earners in other fields of work is to show that teaching is not so financially attractive as many lines of work requiring almost no preparation. Some people have been trained to think that there are other rewards to teaching which compensate for the enforced poverty which it imposes. This does not take into account the elements of ambition and social pride — legitimate incentives to progress. It is not always a matter of whether a teacher can live upon the salary paid, but whether this same individual can live as well and support his family as well on that salary as he would be abe to do in some other work. It is the 'answering of this question in the negative, so many times, which takes out of teaching the ambitious and progressive man or woman — the ones who should above all others be kept in the work, if possible. When the salaries of teachers are raised to a place where the men and women who prepare for the work can be happy in it, proud of it, freed from constant financial worry and able to pay their share of the social and civic activities of the city in which they work, then, and only then, will teaching attract the kind of men and women who should and can instruct the citizens of tomorrow. From an extensive study of statistics obtained from a typical New York City Draft Board,^ it was found that elementary teachers in New York City are paid practically the same wage as butchers, chauffeurs, clerks, machinists, tailors and waiters, almost none of which require any special preparation, and in fact, the returns would indicate that a majority of the followers of these other lines of work have not com- pleted the elementary schools. It is further shown that the financial rewards of becoming an actor, an engineer, a lawyer, a manager, a manufacturer, merchant or salesman are very much greater than those of teaching ; in fact, the median salaries for actors, lawyers, managers and manufacturers are in excess of the median salaries even for high-school teachers, — the best paid high-school teachers in the United States. These figures would be even more disparaging to teachers if the earnings for the men of the first and second draft had not been taken one and two years respectively before the salaries of teachers. These data also showed a rather consistent advance in salary with increase in age except for certain occupations where age affects the limit of maximal efficiency, such as laborers, chauffeurs, clerks, etc. There is a stronger tendency for salary to increase with increase 1 Local Draft Board 13J, Nfw York City. Dr. N. L. Engelhardt, Chairman. Permis- sion was obtained from Provost Marshal General Crowder to use the data providing that it should be taken in such a way that no individual could be Identified. Over 2000 quastion- naires, selected at random from both registrations, were used in the stud\ . TEACHERS' SALARIES AND SALARY SCHEDULES 117 in the number of years of schooling. There is also a very noticeable break with the groups receiving salaries over $2,000, in regard to the amount of schooling. In such groups, the median amounts of school- ing are consistently over ten years, showing that even two years of high school training is a good financial investment. If individual cases are considered, rather than the medians of groups, it is readily seen that the range of salary for the different occupations is much greater than for teachers. A stable sweeper earns $1,600 a year, a newspaper route man $1,750, a riding teacher $1,800, a bootblack $2,000, a waiter $2,300 plus tips, a junk dealer $2,500 and a bartender $3,000 plus tips. None of these men have more than an elementary education, and three of them had only four years of schooling. These are not typical of the groups, but show possibilities of financial reward which are not available to the large majority of elementary teachers. From these results it is evident that in New York City the teachers are not paid as well as the followers of other occupations with less training. Even tho New York City has done so well in the salaries paid its teachers, in comparison with salaries paid elsewhere, it, nevetheless, pays them relatively little when compared to the schedule of pay which exists for other work in the city. This part of the study makes evident the principle that salary schedules should be adjusted to the cost of living in the particular locality. This is a principle which has not been consciously used in estab- lishing schedules of pay for teachers and yet is one which can not be ignored by any city without putting a serious handicap upon that city in its competition for better trained teachers. CONCLUSIONS Part I — Economic Aspects of the Ediicational Emergency 1. The present educational emergency is traceable in practically all of its aspects to the insufficient salaries paid to teachers thruout the country. 2. The cost of living has more than doubled in the last three years, while the increases in teachers' salaries for the United States in the same time has been about 12 per cent. As a consequence, nearly half the teachers of the country are compelled to spend more than their salaries. 3. Teachers, as well as other salaried workers, have not had their salaries increast in anything like the same degree that other workers have. Conse- quently, teachers are constantly being forced to a lower standard of living and a resulting lower standard of efficiency, because they can not meet the higher demands for rent, food, clothing, books, etc. 4. From various studies of budgets for many occupations in relation to the cost of living, it is estimated that a minimal salary of $1,200 should be establisht for the entire country, and paid on the basis of twelve months. Too many teachers are living below the margin of efficiency, when hundreds of them returned their questionnaires annotated with remarks such as : "I work in a 118 SATIOXAL EDUCATIOX ASSOCIATION drug store during summer," "I do house work for my room and board," "I take in sewing to meet expenses," "My summer expenses are paid by my family," "I can't save enough money to go to summer school." 5. Teachers are paid much less than the members of other professions — ministry, law, medicine, engineering, etc. The median salaries are not only larger, but the range of salaries is very much greater, thus oflfering more promise to the capable, the hard-working and the ambitious individual in the professions. This is lacking in teaching. 6. Teachers are paid much less than a great many of the unskilled laborers whose preparation is very much shorter, and whose expenses for "professional upkeep" are very much less. Existing salaries paid to teachers can be said to almost place a penalty upon adequate preparation, since there is no opportunity for an adequate return upon the investment of time and money necessary to the securing of that preparation. 7. A teacher's work is most effectively done when she is in good health, free from worry, able to participate in the community activities, and when she has the social respect of the community. These things make her a leader, a moulder of citizens, a creator of ideals, and yet practically all these elements of success are denied a majority of teachers by the insufficient salaries paid. 8. New York City, which pays relatively high salaries when compared with other cities, in reality pays its teachers no better than the workers in many of the unskilled occupations. 9. The study of the salaries of the 2,015 draft registrants shows that there is in other lines of work an increase in salary in direct relation to an increase in age, and also in relation to the increase in the amount of schooling received. 10. The additional salary received per year of increast age is much less than the additional salary received per added year of schooling. 11. Occupations which demand additional preparation, with the exception of teaching, received higher median salaries than those where education beyond the elementarv scliools is not essential. CHAPTER V SALARY SCHEDULES The principle of fixing a schedule of salaries for teachers is not a new one in education, either in European countries or in the United States. Any extensive use, however, of salary schedules is a develop- ment of the last 30 years. Thomas W. Bicknell, President of the National Education Association, advocated in his presidential address at the meeting of the Association at Madison, Wisconsin, in 1884, the establishment of salary schedules in public school systems, and set forth the four following principles:^ 1. The best talent and largest experience will be found in our primary grades of school. 2. Our best primary teachers and our best high school teachers will receive equal salaries, and these the maximum. 3. A sliding scale of salaries will be adopted, based upon qualifications and experience, ranging from a minimum for beginners to the maximum for the well-establisht and successful instructor. 4. These salaries will never be subject to a decrease during the term of office of any incumbent. A few of the larger cities in the United States have had establisht salary schedules sirxe before the time of the Civil War, but these are few in number, and the schedules were more nearly lists of the salaries which had been paid, rather than schedules of proposed salaries to be paid. In the N. E. A. Report of Salaries of Public School Teachers, the schedules of 547 cities are reported for 1905. The minimal salaries, the increases, the maximal salaries and the actual average salaries are recorded. A further study of salary schedules was made in 1913" by the National Education Association. In 1914 the United States Jkireau of Education published as Bulletin 16, *'The Tangible Re- wards of Teaching," in which all the data, available at that time, on the question of teachers' salaries was presented. These two reports give the salary schedules o"f many of the typical cities of the country, and indicate a decided increase not only in the number of cities having schedules but also in the adequacy of the schedules themselves. In 1918 Commissioner Claxton of the United States Bureau of Education collected data on the salary schedules in 108 cities. In the present study 237 cities of the 365 replying answered the question "'Do you have an establisht salary schedule" in the affirmative. •■ Since this is a representative sampling of the cities thruout the country, it indicates 1 Address and Proceedings of N. E. A., 1884, page 49. =* N. E. A. Report on Teachers' Salaries. Part III. sSee Table XXVII. 119 120 XATIONAL EDUCATION ASSOCIATION ■ the extremely rapid recent growth of the salary schedule principle in the United States. Its development has been so rapid that in a great many cases it has been the result of temporary expediency, rather than of a conscious desire to further the progress of education. In a great many instances where salary schedules have been advocated or secured thru the efforts of teachers' organizations, they have been primarily for the purpose of establishing higher salaries and securing them more uniforml}^ thruout the teaching group, and also to guard against favoritism or "local pull" in the granting of higher salaries. In many cases, where the salary schedules have been advocated and adopted by school boards, it has been for the purpose of establishing minimal and maximal salaries at the lowest figures possible, and for the pur- pose of safe-guarding themselves against having to pay more than these figures to any individual teachers. This at the same time safe- guarded them from, any accusations of favoritism. The large num- ber of superintendents and school officials who report that their salary schedules are "no longer adequate" or "are being revised" or admit their insufficiency by the granting of special bonuses, would indicate that the above described conditions are true. Such returns, as those obtained from the State Superintendents, reported in Chapter III, would indicate the strong tendency to adjust teachers' salaries to the cost of living, and in addition, make them commensurate with the kind of work done. In order that this may be done, certain principles governing the making of salary schedules must be evolved, and quite generally accepted. As a means of throwing some light upon this problem, some of the more recent advances in other countries will be given. The important part which the French schools have played in the development of national morale is now well recognized. During the early part of the war, the efficiency of the schools was seriously threatened by the heavy enlistment of the teachers in the armies of defense. In addition to government regulations relative to keeping schools in session, salary schedules were provided which materially increast the financial reward. A national attempt was made to keep the schools at as high degree of efficiency as they had been at the outbreak of the war. During the early part of the war England met its educational emergency, evidenst in one way among others by an extreme shortage of competent teachers, by the granting of bonuses, which 'in no cases exceeded lo per cent, whereas living expenses had increast several times that. This plan not proving adequate, further provisions were taken in the form of restrictions against increast rents. As this proved no more effective than the bonus, and was in reality but a small TEACHERS' SALARIES AND SALARY SCHEDULES 121 bonus in another form, a departmental committee was appointed to inquire into the principles which should determine the construction of scales of salaries for teachers in the elementary schools. This com- mittee advocated the establishment of a minimal salary of $500 for men, and $450 for women. Several schedules were proposed which went from these minimal to maximal salaries of $1,050 to $1,500, by varying increments over varying periods of time at varying rates. The British colony of Cape of Good Hope has accomplisht much more along the line of adequate salary schedules than has England. In its Educational Ordinance of September, 191 7, all teachers are divided into three classes (A, E, C), according to the amount of education and the certificate held. Salary schedules vary for these classes of teachers. They are made low for Class C, the lowest class, in order to put a premium upon more training and the securing of better certificates. Provision is also made for leaves of absence for advanst study, and for additions to salaries where any teacher holds a higher certificate than the nature of the work calls for. Other elements of -flexibility and rewards are oft'ered to the ambitious teacher, in the form of pensions, expenses home for vacations, if the railroad fare exceeds $10,^ etc. The salaries for principal teachers in schools with more than 150 pupils vary according to the size of the schools from $2,000 to $3,500 for men and $1,300 to $2,050 for women in high schools; from $1,600 *lo $2,500 for men and $1,150 to $1,600 for women in intermediate schools; and from $1,325 to $2,250 for men and $900 to $1,550 for women in primary schools. The regular teachers vary according to their classification as follows : Men Teachers Grade A. — Standards C, D, E: $1,100 rising by three annual increments of $100 and twelve of $62.50 to $2,150. Grade B. — Standards A, B. VI and VII : $800 rising by three annual incre- ments of $100 and twelve of $42.50 to $1,610. Grade C. — All lower classes including fifth: $600 rising by three annual increments of $75 and twelve of $42.50 to $1,335. Women Teachers Grade A. — Standards C, D, E. : $800 rising by three annual increments of $50 and twelve of $31.25 to $1,325. Grade B. — Standards A, B, VI and VII : $600 rising by three annual incre- ments of $50 and twelve of $25 to $1,050. Grade C. — All lower classes including fifth: $500 rising by three annual increments of $50 and twelve of $25 to $950. 1 Salaries are all stated in terms of dollars instead of pounds in order thtt th»y m»r be more easily compared. 122 NATIONAL E DUCATION ASSOCIATION The standard which has been set by the Colony of the Cape of Good Hope is particularly noteworthy when it is realized that these salaries are better in proportion to the cost of living in that Colony than the same figures would indicate in this country. An estimate of this may be had by knowing that "board and room" for a teacher in the various government boarding schools of the Colony is estimated at about $200 per year. In Canada teachers' salaries is a subject of much discussion at the present time. P>om a study made by George J. Trueman of Stan- stead/ Quebec, we learn that for the year 1915-16 the average salary of 631 Catholic women teachers was $198 per year; the average salary for 1564 Protestant women teachers was $563; the average salary of 400 Catholic men teachers was $793 and of 136 Protestant men teachers, $1,477. I^i the Province of Quebec from the same study, we find that the average monthly salary for 12 months for 1915-16 was as follows : Rural elementary teachers $24.27 Elementary schools in towns ". 34.73 Rural model schools 40.70 Rural academies — grades 8 to 11 61.03 Suburban academies — grades 1 to 7 47.22 In some of the western provinces the shortage of teachers has be- come so acute that they are advertising in eastern Canadian papers for teachers, with a provincial government guarantee of $840 as a minimal salary in rural schools. This is tending to elevate the standard thru- out the whole dominion, and will, undoubtedly, result not only in the better payment of teachers, but also in the securing of more adequate preparation. In the United States, in addition to the change mentioned above regarding the making of salary schedules more numerous in the cities of all sizes thruout the country, there has been a rapidly developing tendency to adjust the salary schedules to various divisions of school work. This has resulted in the formation of many very elaborate and cumbersome salary schedules. Certain communities have, how- ever, reacted against this tendency and have gone to the other extreme of establishing minimal and maximal salaries for elementary, inter- mediate and high school teachers, with practically no dilTerentiation of salary within these groups for any other item than length of teaching experience. In order to illustrate the salary schedule situation as it is at the present time, several actual schedules will be printed as they were forwarded to the National Education Association during the early part of 1919. These schedules are not submitted as models, either of 1 Truetnan, Geo._ J., "School Funds — Province of Quebec." Teachers College Contribu- tions to Education No. io6. TEACHERS' SALARIES AND SALARY SCHEDULES 123 what schedules should or should not be. They were selected from the schedules sent in from cities within each size group. They are not in all cases even typical of the salary schedules within the cities of that size, but they are all worthy of study for one or more of the principles of schedule making which they illustrate. The standards set in some of these schedules, particularly those of Newark, Highland Park and Cleveland Heights promise well for the solution of the salary problem, since they show what was actually being done at the close of the year 1918-19. No elaborate criticism of any of these schedules will be attempted, since the standards and the rules set forth are determined by local conditions. When all teachers and school patrons are intel- ligently interested in the permanence and efficiency of the educational system, it will be much easier to establish salary schedules which more closely approximate ideal conditions. It is one purpose of this study to so present the problem of teachers' salaries and the arrangement of salary schedules that this necessary interest may be at least started, and lead to many further investigations. When enough of these re- sult in reliable data, it will be possible to take steps toward the standardization of salary schedules and the conditions under which teachers work, which are not thought possible at the present time. SALARY SCHEDULES SCOTIA, NEW YORK General Regulations Increases in salary shall be made September 1 of each year, on a basis of merit to be determined by Committee on Teachers and Instruction. Principals and Special Teachers The Principals, Librarian, teachers of Music, Drawing, Household and Manual Arts, Physical Education, or any other so-called "special subjects" are not on a regular schedule, but shall receive such compensation as the Board of Education, after considering the recommendations of the Committee on Teachers and Instruction, shall determine. Regular Teachers 1. Regular teachers shall receive such compensation for their initial year as their training, length and quality of experience, and the nature of their duties shall warrant. 2. An annual increase from $0. to $100 shall be granted to each regular teacher in the system, who is not a teacher of so-called "special subjects." There shall be an additional increase of $40 upon the completion, with credit, of two full courses, previously approved by the Supervising Principal, in a summer school. There shall also be a further increase of $40 for a second summer's course upon the same conditions. 124 N ATIONAL EDUCATION ASSOCIATION Increases will be granted in accordance with above, until final maximums have been reacht as follows : High School $1,300 Junior High 1,200 Elementary School 1,100 Principals— High School 1,500 Principals — Elementary School 1,300 Adopted February 14, 1919. ' SCHEDULE OF SALARIES FOR MILLVALE, PA., PUBLIC SCHOOLS Adopted by Board of Directors June 1, 1918. Grades One and Seven Without experience $65 per month One year's experience 70 per month Two years' experience 75 per month Three years' experience 80 per month Grades Two, Three, Four, and Kindergarten Without experience $55 per month One year's experience 60 per month Two years' experience 65 per month Three years' experience 70 per month Grades Five and Six Without experience $60 per month One year's experience 65 per month Two 3'ears' experience 70 per month Three years' experience 75 per month Grade Eight Without experience $70 per month One year's experience 75 per month Two years' experience 80 per month Three years' experience 85 per month Note. — When salaries have been once fixt at the opening of a school terra, they will remain constant thruout that term. If a teacher should be transferred to a new grade during the school term, she will receive the salary of the grade to which she has been transferred, according to experience. TliACtlEKS' SALARIES ASD SALARY SCHEDULES 123 OKLAHOMA CITY SALARY SCHEDULES 1919-1920 Years of Service (1) (2) (3) (4) (5) Grades and Kindergarten $80 $90 $100 $110 $115 Non-normal grad. 120 Normal graduate As5t. Kindergarten 70 80 90 Domestic Science 90 95 100 110 115 Manual Training 100 110 115 120 125 Supervisors 1400 1500 1600 1700 1800 H. S. Dept. Heads 1400 1500 1600 1700 1800 H. S. Asst. Academics 1200 1300 1400 1500 1600 Prin. & Asst. Principal of Higli School, fi.xt by Board. Substitutes (Grades) $4.50 per day Substitutes (H. S.) 5.00 per day PRINCIPAL'S SALARIES Years of Service (1) Number of Teachers, including Principal. 1 to 6 fixt by Board 7 to 10 $1300 11 to 13 1400 14 to 16.. 1500 17 to 24 1700 (2) (3) (4) $1350 $1400 $1500 1500 1600 1700 1600 1700 1800 1800 1900 2000 SALARY SCHEDULE FOR THE ELEMENTARY TEACHERS OF LACONIA, N. H. Effective January 1st, 1918. First year $500 minimum Second year 550 " Third year 600 " Fourth year 650 " Fifth year 700 maximum A principal of a building of three or more rooms wil- receive $25 per year in addition to her regular salary. An additional $25 will be given to a teacher after three years' experience for taking a summer school course approved by the superintendent of schools. CLEVELAND HEIGHTS SCHEDULE OLD AND NEW SALARY SCHEDULE New New Year Old Class "A" Class "A" Old New Old New Class "A" High School Elementary Class "B" Class "B" Class "C" Class "C" 1 $700 $1000 $1000 $600 $750 $500 $600 2 775 1100 1100 675 825 550 675 3 850 1200 1200 725 900 600 725 4 950 1300 1300 800 975 650 800 5 1000 1400 1400 850 1050 700 850 6 1100 1500 1500 925 1100 750 925 7 1200 1600 1600 1000 1175 800 1000 8 1300 100 1700 1075 1250 850 1075 9 1400 1800 1800 1150 1300 900 1150 10 1500 1900 1200 1375 950 1200 11 1600 2000 1250 1450 1000 1250 12 1700 2100 1300 1500 1100 1300 13 1800 2200 1400 1600 1200 1400 14 2000 2300 Heads Depts. 2400 2500 2 .00 2700 2800 2900 3000 Class "A" — Teachers having diplomas from college, or college and normal school. Class "B" — Teacheia hav'ns dipomas from normal schoo'. Class "C" — Teach rs having diplomas from neither co'le no normal school. Note: — The system is no tak.ng any more teacher of the 'C" group. 126 NATIONAL EDUCATION ASSOCIATION SALARY SCHEDULE FOR HIGHLAND PARK SCHOOLS Highland Park, Michigan. In effect 1917-18. Year 1 1. High School Principal 2. Principal, 26 rooms or more. 3. Principal, 15-25 rooms 4. Principal, 9-14 rooms 5. Principal, 8 rooms 6. High School Head 7. High School Teacher 8. Grade Teacher 9. Kindergarten Teacher 10. Study Room Teacher 11. Nurses 12. Stenographers, Clerks, Book- keepers 13. Phone Operator 14. Business Officer 15. Supervisor of Buildings 16. Attendance Officer 17. Summer School Teachers.etc $2400 $2640 $2880 $3120 $3360 $3600* $3840 $4000 2040 2220 2400 2580 2760 2940 3120* 3300 3500 1860 2040 2220 2400 2580 2760 2940* 3120 3300 2. 1500 1680 1860 2040 2220 2400 2580* 2760 2940 1080 1200 1320 1440 1560 1680* 1800 1500 1680 1860 2040 2220 2400 2580* 2760 2940 4. 1200 1320 1440 1560 1680 1800* 6. 1080 1200 1320* 1440 1560 3. Same as No. 8. If teaching only one session 25% less. 200 pupils, if qualifications are same, same as No. 6; less than 200, same as No. 960 1080 1200 1320 1440 1560* 720 840 960 600 720 840 >• 5. Same as No. 4. Same as No. 4. 1080 1260 1440 1620 1800 1980 2160 Salary $720-$840=$3.50 per day. $1200-S1400=$4.50 per day. $960-$1080=$4.00 per day. $1560--S5.00 per day. (Based on salary already received) Janitors and Engineers 18. Assistants — Men, ab't 55 hrs. 19. Women , about 45 hrs. per wk. Stevens Angell and Thomson Ferris, Ford and Willard .... High Engineers 20, 21, 22 23 24, 25. Firemen,about 56 hrs. per wk. First Next Next Next Next 3 mo. 6 mo. 6 mo. 9 mo. Year $75 $80 $85 $90 * 50 55 60* 75 80 85 90* 85 90 95 100 105* 95 100 105 110 lis 120 125 130 135 140 Same as janito . for same building. 75 80 85 90* *One must be of exceptional value to be advanst beyond this point. A. Teachers considered satisfactorj' are to be advanst each year. Those not successful will not be re-elected In a few cases, in which the degi-ee of success cannot be determined, teachers may be re-elected without increase. B. Absence — When a teacher is absent, all or part of the salary of said teacher for the time absent may be de- ducted, at the discretion of the Superintendent, with the approval of the Board of Education. C. Substitute Teachers — Substitute teachers shall be appointed by the Superintendent and reported to the Board of Education for approval. The pay of each substitute shall be fixt by the Superintendent and reported to the Board of Education for approval. Requirements — All teachers must have a State Life Certificate and be citizens of the United States. Special requirements below. 1. College or university degree, ten years' experience as a teacher, five of which shall be as a high school principal 2. Two years' normal course and college or university degree. Ten years' experience as a teacher, five of which shall be as a principal of a graded school. 3. Two years' normal course. Experience elsewhere to be credited about one-half. 4. College or university degree. Four years' experience as a high school teacher. 5. Twelve months' service with two weeks' vacation. 6. College degree and experience. TEACHERS' SALARIES ASD SALARY SCHEDULES U7 cooo cccccoscco oooo oooocoocoo S39S oooo oooo ocooc oooo ocooc oooo oooou^ coo occcc •'■^ 1 1 w :^ •>, y- r ! SI \ 128 XATJOXAL EDUCATIOX ASSOCIATION Z 2 -1 J < O < OOO OOP 1 C O lO o o o «-«N O, colour OOO OOO OOO OOO coo occooo 10*^^0 o o o J OO OOO O O lO OOO OOO OOO 1/5 ID O OOO r^ t^r^ f^ O O coo coo O O »0 OOO r^ r^ \0 r^ Ci O^ OOO O c o lOulO OOO vO *0^ '^ 00 00 -t^ oc<->£ w ►J o o o J < Q ^^ o 2: ^3 8§§g§ JJ C — g o § 1 o o o 8 §8 o o ,. m O 0(J a,< g m C t. .E £ m « ooool ooool ^ ■^■*io **. — o o rg o lO o o „ o ■o »o o »-l ^ ^ o o IT o «9 w > O o <~ •o H ■* OS U W u, f'l Q o g IT o* «» „ o p- 00 «? 8 o o 00 ^ 1 1- j: <. 2 c s T m s 8 a < 1 TEACHERS' SALARIES AND SALARY SCHEDULES 129 x< o il cj cs CN PI tN ts eg r) oooooe oo OCCOOO CO _^ ^_sg ss OO ooco oooooooo CO oooooooo CO oooooooo oo OOOOOCCO CO occoocog < u 5 S 4J 4J "5 4' d CJ 3 "r/i^'-'oocooi-C t;.2.2.2.2.2 0fl- 2 > > > > > 2 «S o S '-' r^r 3 3 3 3 3 fO CM CN rs) cuSQQ ISl W c« a CQ o ID q |a ^-o ..c §§ 1 1 ffiS 130 XATIONAL EDUCATION ASSOCIATION NEWARK SALARY SCHEDULE (Continued) NOTES 1. Head assistants and first assistants, teaching classes of the eighth grade, shall receive $100 additional while teaching such grade. 2. First assistants and head assistants teaching the eighth grade, promoted to a grammar vice principalship, shall be paid $100 in addition to the amount of salary they received at the time of their transfer, including the amount paid for teaching the eighth grade. 3. Kindergarten directresses in charge of kindergartens having more than four kindergarten assistants shall receive $100 additional to the salary schedule for directresses. 4. Assistants in charge of classes for crippled children and of open air classes for anaemic children shall be paid in accordance with the schedule for assistants in elementary schools. 5. In all cases of promotion of teachers to higher positions, they shall be advanst to the next higher salary grade, provided, such increase shall not change the date of the annual increase fixt prior to such promotion. 6. All teachers must serve three years as temporary teachers, upon the completion of which, if satisfactory, they shall enter upon the first year of the permanent grade. 7. All increases of salary under this schedule shall be based upon merit and efficiency to be ascertained as far as practicable from the official record of the Board of Education. Such increases shall be recommended by the Superin- tendent and approved by the appropriate committee. 8; Teachers absent from duty on account of furlough or other excused absence for a period in the aggregate not longer than two months in any one year shall not suffer thereby any loss of time in reaching the next higher salary grade. 9. Principals and teachers of alternating schools which have been in operation for at least one year shall receive an additional increase of 5 per cent of their salaries for such services. This does not include kindergarten direc- tresses and assistants and teachers not having alternating classes and teachers on special schedule. 10. No salary now paid shall be reduced by reason of this schedule. TEACHERS- SALARIES AM) SALARY SCHEDULES 131 ELEMENTS TO BE CONSIDERED IN MAKING SALARY SCHEDULES For convenience in discussing these elements they have been groupt under the two inckisive headings Economic Elements and Educational Elements. Many of these elements will involve principles which are rather definitely settled, others will have the prestige of common prac- tice, while others have been applied successfully, but not as yet to teachers. A. ECONOMIC ELEMENTS I. Relation of Salary Schedule to Wealth of Community As long as the question of the payment of teachers remains one for local settlement it might seem that it would be somewhat influenst by the per capita wealth of the community. A casual examination of the schedules obtained from cities over the entire country might give weight to the general statement that the more wealthy and more rapidly growing communities pay larger initial salaries, and extend them to higher maximal salaries. In order to determine the degree to which the above generalization is true, the following study was made : One hundred cities were selected from the "Financial Statistics of Cities for 1916" (Table XXXII) by taking each alternate city. Since the cities are arranged alphabetically according to size, this gave a random sampling of the cities in the country with a population in excess of 30,000. The per capita wealth was secured on the basis of estimated true valuation over a period of years extending from 1910 to 1916. The average amount of salary per elementary teacher was also computed for the same period. The cities were then rankt according to the percentage of increase or decrease in per capita for 1916 over 1910, and also rankt according to percentage of increase or decrease in average salary of elementary teachers during the same period. The coefficient of correlation was then establisht for the J^) cities of the 100 which had complete data for both items. Spearman's formula was used in obtaining this coefficient, and the result r = .038, was obtained. This coefficient indicates that for these 73 typical cities in the United States, there was during this interval of 6 years no association between the per cent of increase in per capita wealth and the per cent of increase in average salary paid to elementary teachers. In other words, it was purely a matter of chance whether the city I 132 NA TIONAL EDUCATION ASSOCIATION which increast most in per capita wealth paid its elementary teachers an increast salary. In fact, the actual figures show that the city which decreast most in per capita wealth and therefore, rankt first or lowest in increase in per capita wealth rankt 58th in the percentage of increase in salaries to elementary teachers, while the city which rankt 46th in the increase in per capita wealth, rankt first or lowest in the amount of increase given to elementary teachers. The above study would con- clusively indicate that this question of increases to teachers' salaries is largely a matter of local progress, and depends more upon the develop- ment of a favorable community attitude or upon the aggressive work of a superintendent or teachers' organization, than upon any economic development of the community. Such a study is evidence of the oft- quoted statement that a community will find the means of supporting schools when convinst that it is a desirable thing to do. The second consideration under the relation of community wealth to teachers' salaries is the question of relative financial burden carried. This is more prominent in some sections of the country, particularly in the southern section, where many districts have a very low per capita wealth. In these districts the tax burden of supporting schools upon the same level as the more favored communities becomes so high as to be prohibitive. At least two determining conditions enter this situa- tion. First, the lack of natural resources for certain sections of the States, and second the principle of placing such a low valuation upon the property that the tax rate seems entirely out of proportion to the property value. Readjustment of salary schedule within these com- munities will necessitate a change in the tax system and assistance from a larger taxation unit. In some instances, aid can be obtained from the State as a unit of taxation, but there would remain whole States where the burdens would be entirely out of proportion to those born in other sections of the country. The only permanent solution of the economic side of the salary problem for these sections is in some form of federal subsidy. 2. Relation of Salary Schedules to Expenditures for Other Purposes The question of determining schedules for teachers' salaries is one of the important financial problems of any city. In Table LXIII, the percentage of the total operating expenses expended for teachers' salaries in all of the cities of the United States, having a population of 25,000 or over, is given for the years 1909-10, 1910-11, 191 1 -12, 1912-13, 1913-14 and 1914-15. One thing that is obvious from a glance at the table, is the very great range in per cent of total expenses TEACHERS' SALARIES AXD SALARY SCHEDULES 133 TABLE LXIII PERCENTAGE OF TOTAL OPER.A.TING EXPENSES EXPENDED FOR TEACHERS' SALARIES (Number of cities devnting each percent indicated ) % 1910-11 1 1911-12 1912-13 1913-14 1914-15 1915-16 A B T A B T A B T A B T A B T A B T 27 1 1 31 1 1 32 1 1 40 1 1 41 42 2 2 1 1 43 1 1 45 1 1 46 1 1 3 3 1 1 47 1 1 48 2 2 1 1 1 1 1 1 49 2 2 3 3 1 1 1 1 50 3 3 4 4 2 2 2 2 1 1 51 1 6 7 5 5 2 2 2 2 1 1 3 3 52 3 3 2 2 4 4 1 1 4 4 2 2 S3 2 2 5 5 7 7 5 5 2 2 54 1 6 7 7 7 2 5 7 1 3 4 4 4 1 1 55 1 1 7 7 8 8 3 3 1 3 4 10 10 56 9 9 5 5 4 4 1 4 5 1 8 9 8 8 57 5 5 6 ,, 1 4 5 3 8 11 7 7 2 3 U 58 1 9 1 2 11 13 1 8 9 7 7 1 14 15 11 11 59 8 8 1 15 16 1 11 12 2 9 11 3 6 9 1 10 11 60 1 10 11 ■> 10 12 2 7 9 1 4 5 5 9 14 10 10 61 1 5 6 1 6 7 1 13 14 3 11 14 1 7 8 3 3 62 1 6 7 7 8 15 1 7 8 2 15 17 2 11 13 4 13 17 63 4 8 12 4 5 9 4 14 18 1 8 9 2 7 9 5 9 14 64 3 6 9 3 7 10 4 15 19 2 11 13 1 IS 16 4 11 15 65 3 2 5 2 8 10 5 8 13 5 9 14 8 10 18 4 12 16 66 3 6 9 3 5 8 3 7 10 4 11 15 4 10 14 2 8 10 67 1 4 5 6 5 11 8 4 12 5 8 13 4 6 10 4 5 9 68 2 5 7 1 9 10 4 4 5 5 10 3 5 8 2 4 6 69 4 3 7 3 2 5 1 3 4 3 3 6 4 3 7 3 8 11 70 1 2 3 6 2 8 2 5 7 2 4 6 6 1 7 8 2 10 71 1 3 4 2 3 5 3 1 4 2 5 7 2 3 S 72 1 2 2 3 2 5 1 3 4 1 1 3 1 4 73 1 2 3 1 1 2 2 2 3 5 1 1 1 2 3 74 1 1 1 3 3 3 3 75 1 1 2 1 3 1 1 76 1 1 2 3 1 1 2 77 1 1 1 1 1 1 1 1 2 78 1 1 1 79 1 1 1 2 2 80 1 1 82 83 1 1 1 1 1 1 1 1 84 1 1 85 86 1 1 87 1 1 88 62 66 Medi- 65 60 60 62 66 62 63 67 63 64 65 61 62 67 62 63 ans A— Cities over 100.000. B— Cities 25,000-100,000. T— Both together. expended for teachers' salaries. During 1910 this ranged from one city which spent only 27 per cent on teachers' salaries to another which Spent 86 per cent. The medians for the two groups of cities into which the table is divided, show a surprising consistency thruout the period of 6 years. In Table LXIV which gives the changes in per cent of total operating expenses devoted to teachers' salaries in these cities, we find a correspondingly large range with the heaviest part of the dis- tributions centering around the "0" change. The medians in all cases, except where the change was computed between 1910-11 and 1915-16, is either "o" or +1% or — 1%'. Even in the last column, where the 134 XATIOXJL EDUCATION ASSOCIATION TABLE LXIV CHANGES IN PER CENT OF TOTAL OPER.ATING EXPENSES DEVOTED TO TEACHERS' SALARIES.* All cities over 25,000—1910-11 to 1915-16. 1910-11 to 1911-12 to 1912-13 to 1913-14 to 1914-15 to 1910-11 to 1911-12 1912-13 1913-14 1914-15 1915-16 1915-16 +31 1 +25 1 +20 1 + 19 1 1 + 18 1 1 + 17 3 + 16 1 1> + 15 1 2 + 14 2 2» + 13 1 1 1 1 1 + 12 3 2» + 11 1 2 1 1 1 4» + 10 2 2 2 1 2 2 + 9 5 1 1 1 3 + 8 3 3 2 52 + 7 1 1 5 1 3 + 6 3 7 7 3 8 15» + 5 9 6 9 10 9« + 4 9 11 7 8 6 14< + 3 8 8 12 6 10 142 + 2 9 20 19 13 26 14' + 1 10 22 24 21 18 105 is: 19 20 29 23 15' — 1 9 16 16 16 26 12' — 2 14 14 14 18 15 8« — 3 15 10 5 10 14 6' — 4 8 1 7 9 4 46 - 5 5 6 3 5 3 72 - 6 3 2 8 5 3 6 - 7 4 1 8 1 5 - 8 5 I 3 7 3 4 - 9 1 1 4 t 4 -10 2 1 1 4 .^s -n 2 2 1 2 -12 2 1 1 3 -13 1 3 1 -14 1 1 -15 1 — 16 1 1 1 -17 -18 1 — 19 1 —20 1 Medians Plus 1 Plus i; Minus 1 Plus 2 ■From 1911-12 to 1915-16. 1913-11 figures not available. 'One of the cases as above. 'Six cases as above. *Four cases as above. •Two cases as above. •Three cases as above. change in per cent is figured over a period of 5 years, the median change was located at +2%. These tables show the very great variation in the percentage of total operating expenses spent for teachers' salaries, and also in the change of that per cent which would further substantiate the statement that salary adjustments are, at the present time, matters of local initiative. Further evidence to prove the above point is given by Tables LXV, which gives the distribution of the annual amount spent for elementary teachers' salaries for each • Compiled by L. M. Wilson. TEACHERS' SALARIES AND SALARY SCHEDULES 135 TABLE LXV DISTRIBUTION OF ANNUAL AMOUNT SPENT FOR ELEMENTARY TEACHERS SALARIES FOR EACH PUPIL IN AVERAGE DAILY ATTENDANCE BY CITIES OF OVER 25,000 INHABITANTS FOR THE YEARS 1910-1916. 1910-11 1911-12 1912-13 1913-14 1914-15 1915-16 $ 9.00- 9.99 1 10.00-10.99 1 11.00-11.99 1 5 2 2 1 12.00-12.99 2 2 1 2 3 13.00-13.99 2 2 1 1 4 4 14.00-14.99 3 4 1 4 4 3 1.5.00-15.99 3 4 5 4 5 2 16.00-16.99 2 6 4 3 9 4 17.00-17.99 3 2 6 5 7 10 18.00-18.99 2 5 12 7 8 4 19.00-19.99 4 9 9 9 11 11 20.00-20.99 4 7 10 7 14 10 21.00-21.99 3 8 4 8 6 10 22.00-22.99 2 5 11 11 12 7 23.00-23.99 3 3 10 8 7 13 24.00-24.99 4 2 4 12 9 12 25.00-25.99 1 6 4 7 9 6 26.00-26.99 2 2 6 5 10 11 27.00-27.99 1 3 5 6 4 9 28.00-28.99 1 2 3 4 4 8 29.00-29.99 1 2 5 4 3 30.00-30.99 3 3 1 4 3 31.00-31.99 2 2 1 1 32.00-32.99 1 1 1 2 1 33.00-33.99 3 34.00-34.99 1 1 1 2 35.00-35.99 1 36.00-36.99 1 3 3 37.00-37.99 1 1 38.00-38.99 1 2 39.00-39.99 1 40.00-40.99 1 41.00-41.99 42.00-42.99 43.00-43.99 1 44.00-44.99 1 1 45.00-45.99 1 46.00-46.99 1 47.00-47.99 48.00-48.99 1 44 78 114 120 144 148 Median 20.25 20.56 21.75 22.77 23.08 23.31 25% 16.50 17.06 18.46 19.22 18.50 19.40 75% 23.99 24.04 25.64 25.99 25.99 26.88 pupil in average daily attendance by cities of 25,000 inhabitants or over, for the years 1910-11 to 191 5-16. The distributions show the same tendency to scatter over a wide range with a heavy grouping of the cases around a median of $20. The medians for the 6 years show a slight increase for each consecutive year, which indicates this same slight tendency to increase salaries of elementary teachers for con- secutive years. Particular cases can be found among cities where the percentage spent for teachers' salaries is materially influenst by the presence or lack of other city projects. A new water supply or a city municipal building very frequently brings about a curtailment of the educational budget. There seems no reason why the amount spent for schools, a large per cent of which would go to teachers' salaries, should not be a fairly definite percentage of the total city 136 NATIONAL EDUCATION ASSOCIATION expenditures. The medians shown in Tables LXIII would indicate that current practice would put this percentage at about 65. Assum- ing that there has been certain financial exploitation of the teachers during the years for which these figures are computed, it would be safe to say that this percentage should be higher than 65 per cent. 3. Relation of Salary Schedules to the Cost of Living As before stated, very few schedules, except as they have been revised within the last decade, have been made with any serious con- sideration of the cost of living for teachers. Where living conditions are at all unusual, either in regard to the price of standard commodities or in regard to exorbitant rents due to rapidly growing population, an adjustment should be made for that city in the teachers' salary schedule. One difficulty in such an adjustment is the principle which has become more or less commonly accepted — that a teachers' salary, when once raised, should not be decreast. This is not really a difficulty and should not be seriously considered, since it is very improbable that any such adjustment would relatively overpay the teachers. The same reluctance to having wages reduced exists in all other occupations as well. 4. Relation of Salary Schedules to Legislative Restrictions In many cities and a number of states, cautious law makers have guarded against extravagance in the expenditure of funds by making laws of various descriptions limiting the amount to be spent for this or that purpose, or placing a limit upon the increase which can be spent for any item in one year over the preceeding year. While these laws seem financially safe when past, they inevitably impose a serious obstacle to progress when it becomes necessary to undertake some very needed improvements and undertake them at short notice. An instance of this was found inthe situation at Louisville, Ky., when the city was confronted by a serious shortage of teachers, and the salary schedule was obviously too low. With a legal limit placed upon the amount of money which could be expended for school purposes, the board of education voted, as a means of increasing teachers' salaries and in- suring enough teachers to open schools, to pay teachers their 10 months' salary on the basis of 8]/^ months, and trusted that a special election at the end of the fiscal year would provide the needed funds to con- tinue payments at the increast rates. The schools are so close to the general public and the interests of the tax payers are so vitally con- cerned with the work of the schools, that it would seem safe to allow the schools to progress as rapidly as the communities are willing to appropriate funds for them, and not have them hampered by legisla- tive restrictions. TEACHERS' SALARIES AND SALARY SCHEDULES 137 B. EDUCATIONAL ELEMENTS 1. Salary Schedules as a Guarantee to a Career One of the elements which has interfered with teaching as much as perhaps any other, has been the fact that teachers are so transient in their work. The average professional life of a teacher has been variously computed at from 5 years up. The findings of the present study would indicate that at least in the cities this figure is too low, and that the median amount of experience is between 7 and 10. At any rate, it is a well known fact that a great many people use teaching as a convenient stepping-stone to some other line of work which prom- ises a more rapid and more permanent income. When salary schedules are so arranged that a teacher can begin with enough money to induce the better prepared and most ambitious men and women to choose teaching as a life work, and seriously prepare for it, there will be a possibility of making teaching a genuine profession, as well as a pos- sibility for carrying on consecutive work thruout the different systems. Teaching suft'ers more than any other occupation from its inability to make capital from the experience of the workers in it, since so many of them leave the work at a time when experience is becoming richest. Salary schedules should, therefore, start at a high enough figure, and reach a high enough maximum to induce the type of men and women who should be teachers to seriously prepare for it, knowing that in the work of teaching itself, a career is oft'ered. 2. Salary Schedules as an Incentive to Adequate Preparation In connection with the above point, salary schedules must insure adequate preparation. It seems unwise to try to secure better prepara- tion without giving a just compensation for that preparation when secured. Lack of such a policy prevents capable prospective teachers from going to the expense of thoro professional training when they know that after graduation from some teacher training institution, they cannot secure a minimal wage comparable with the other fields of work open to students with the same amount of preparation. An ade- quate minimal salary alone is not enough to secure this prepara- tion. As advocated in the above point, increases given and the maximal salary attainable are also elements in determining the amount of preparation a prospective teacher is willing to invest in. If the promist rewards are so small that they represent no returns on the in- vestment of time and money in securing preparation, only teachers with no business sense, or those inspired purely by a missionary desire to serve, would enter teaching. There has been, within recent years a decided improvement in salary schedules in this respect. In the United 138 A'.^ 77 OX A L ED UCA TION A SSOCIA TI ON TABLE LXVI MEDIANS FOR MINIMAL AND MAXIMAL SALARIES AS GIVEN IN SCHEDULES FOR CERTAIN CITIES LISTED IN U. S. BULLETIN No. THE SALARY 16—19141 I II III IV V Total Elementary 26 1125 28 617 13 1013 16 475 15 863 25 487 20 813 30 550 14 810 27 575 88 913 126 Teachers 538 Maximum: No. of cities 22 2400 26 1038 6 2350 15 845 12 1425 23 788 14 1567 30 800 14 925 27 713 68 1650 121 Teachers 834 High School Minimum: No. of cities 10 over 3000 26 977 8 2500 16 950 ■ 8 2350 22 833 13 1750 23 875 12 1325 24 750 60 Principals 2400 111 Teachers 846 Maximum: No. of cities 25 1838 16 1550 20 1325 22 1275 28 942 105 Teachers 1425 > "The Tangible Rewards of Teaching." States Bureau of Education Bulletin, "The Tangible Rewards of Teaching," No. i6, 1914,^ salary schedules for certain city school sys- tems are given. The minimal salary, the amount of annual increase, the number of years for which increases are given and the maximal salary are recorded. A tabulation of these data. Table LXVI shows the following median results for the cities in the first five size groups. It will be obvious from these figures that in 1912-13, the year for which these data were collected, that the findings in Chapters I and II are substantially corroborated, since the minimal and maximal salaries vary directly as the size of the cities varies. In this connection, the median number of years of increase, both in the high school and in the elementary grades varies between 6 and 10. with a rather consis- tent median for the groups in the neighborhood of 8 yearly increases. A slight tendency is shown for the larger cities to grant a greater number of increases. The tabulation of the median increases for ele- mentary teachers given in these difi^erent cities, varies from $35 to $60 as the cities increase from Size 5 to Size i. The median increase runs from $55 to $85 for high school teachers as the size of the city increases. In connection with the value of salary schedules as a promise of a career and as an incentive to adequate preparation, the advance made within the last few years will be of interest. In the National Education Association study on "Teachers' Salaries and Cost of Living" for July, 1918, Appendix 7 gives the minimal and maximal teachers' salaries in 108 cities collected by the Commissioner of Edu- cation, May, 1 91 8. As an indication of progress during the 5 years ' Size groups are similar to those defined on page 9. TEACHERS' SALARIES AND SALARY SCHEDULES 139 between the collection of these data and those recorded in Table LVI the median maximal salaries for cities in Size Groups I, II and III are computed to be as follows : Median Maximal Salaries for Elementary Teachers Size Group I $1,250 Size Group II 950 Size Group III 829 Median Maximal Salaries for High School Teachers Size Group I $2,240 Size Group II 1,988 Size Group III i,54o A comparison of these with the median maximal salaries for 1912-13 given above, will show that within the 5 years a decided in- crease in maximal salary offered, occurred in all of these groups, which indicates a recognition on the part of school boards, especially in the larger cities of the necessity of a liberal maximal salary in order to secure the desired number of the right kind of teachers. In order to show that the preparation of teachers can be controlled thru the salaries offered, 10 cities were selected from the cities included in the study in Chapter I which paid relatively low salaries, and the amount of preparation of the teachers was compared with the prepara- tion of the teachers in 10 selected cities from the same list paying relatively high salaries.^ The 10 cities paying relatively low salaries had median salaries for the 457 teachers who returned the questionnaire of $652, with a median amount of preparation above the 8th grade of 5.76 years. The 10 cities paying relatively high salaries had a median salary of $1,049 ^or the 548 teachers answering from those cities, with a median amount of preparation beyond the 8th grade of 6.44 years. This shows that even under present conditions the cities paying the better salaries are securing teachers with more adequate preparation. Table LVII and LVIII give these distributions, which by inspection reveal the situation. In addition to the above mentioned necessity for having the mini- mum and maximum high enough to warrant preparation, another very important item is the amount of the annual increase and the number of years necessary to attain the maximum. A maximum of $1,800 * The 10 cities represented in the group paying the lower salaries are: Augusta, Ga., East St. Louis, 111., Paducah, Ky., Millville. N. J., Indiana, Pa., Herrin, 111., Carthage, Mo., Sandford, Fla., Horton, Kans. The 10 cities represented in the ^roup paying the higher salaries are: Columbu*. Ohio, Des Moines, Iowa, Oakland, Calif., East Chicago, Ind., Pasadena, Calif., Cleveland Reights. Ohio Great Falls. Nev., Prescbtt, Ariz., Lake Forest, 111., Topanah, Nev. 140 NATIONAL EDUCATION ASSOCIATION Pi < u >• (X. o « b) r/1 n U 0!i n < H w ?r 9J O ix! < is o W o 7; X u H s u as b] u X H "»»' -« •-r>.Xi/-;C-C>OfO'-'VOt~-5.\0— —»- "t r»5'>t'»"fXtNt^d^' — — f*jfM r-j^ rvj ^^ O^^C^O>^^0'C^C^^0'0^C^^^O"^O-0^O^©^^O0^O^^O^^0^O•O^^0■'0^0■. I (N (^I rg 01 goocoooooooccoo oco O — — OCOOOOOCOOOOOOOQOO O'OCu^C'^OOOOOOOOOOOp TEACHERS' SALARIES AND SALARY SCHEDULES 141 < "- 'r — »- t f^l -H »- rs r*^ r» ^ -^ •-.sO'C^-'tl^, ^U~, ^-fvlf^^M* -^ — M-t'«tXOi''''CO^^'t»A"^ *-^ rl-t'-l■'ClOlr!U^O^-"C>•*'^'-^»fO ^ '^-^-^'*5'^t^O"* ■^r^\C**-^ ^- •f^irN— f^CN .M^- !> O^ O' O- O' O O- O- '3 )OOOOOOCOOOOOOOOOOOOOOOOOOOOO< ) -" rg ro I" lO < a M ■" a 2c C M ■a 142 NATIONAL EDUCATION ASSOCIATION offers practically no incentive if it takes i6 years to reach it from the $i,ooo minimum. Salary increases should be large enough to make an immediate appeal to ambition and thus promise a fairly adequate salary after 4 or 5 years. This is the period when the average indi- vidual desires to increase his responsibilities, purchase a permanent home, or make other investments of more than temporary nature. The gratification of these desires should be made possible. But a salary schedule should not carry teachers up to this point, and then not offer incentive enough to hold them. This is the objection to some of the salary schedules proposed by the English Committee^ who recom- mend a granting of larger increases for a period, then of smaller in- creases and then, of larger increases again. Such plans as this have no justification, except that they save to the taxpayers the small dif- ference in the increase during the years when the increase is reduced. It is just such evidence of pettiness in the financial control of the schools which disgust capable men and women to the point of leaving teaching. The most acceptable plan for granting increases seems to be to grant the same increase for each year of successful experience until the maximum is attained for that particular kind of work. It would seem that for an adequately prepared teacher, that is, one who has had six or more years preparation above the elementary school, no annual increase should be less than $100 or given for less than six or eight years. 3. Salary Schedules as Incentive to Progress While Teaching The objection most frequently made to the introduction of salary schedules is that they so often and so quickly become automatic and taken for granted that they produce mental lethargy and destroy the incentive to self-improvement. Of course, this is not an objection to the schedules nor the principles involved, but rather a criticism of the way in which so many salary schedules have been administered. It is unfortunately true that many individuals, some of whom are teachers, will not do any more work than they think is absolutely necessary in order to secure their pay. For such, an automatic increase is not a reward of meritorious service nor a spur to make each year's work better than the preceding one. While it seems obvious that in- creases should not be received as a matter of course and regardless of. the effort of the teachers, guarding against such a situation is one of the difficult elements in administering a salary schedule. In every other field of endeavor the reward is more nearly determined by the effort put forth. The principle reason why it is so difficult to apply 1 Summary of the report by Dr. I. L. Kandel in Appendix XIII ol "Teachers' Salaries and Cost of Living" — N. E. A., 1918. TEACHERS' SALARIES AND SALARY SCHEDULES 143 this rule to teachers is the intangible nature of much of a teacher's work and the inabihty by present measures to determine the results obtained. In the face of these difficulties only a few cities have so far tried to put the granting of increases upon a basis of measurable or "rated" merit. In many cities where the superintendent reported that the granting of an increase depended upon successful work, it meant that the superintendent had to act as the judge of whether the work was successful or not, and this in most cases, meant that the increase was granted if the work was not of a nature to secure the dismissal of the teacher. When better and more accurate supervisor's tests are developt so that is will be possible to rate a teacher justly into one of three or four classes, not alone in relation to other teachers, but more partic- ularly in regard to her own previous work, the administration of in- creases to insure and reward progress will be relatively simple. A suggestive classification which is being used in several places is : Class I — Teachers whose work is entirely satisfactory, who have gained in ability to teach and in their mastery of the subject matter taught; Class II — Teachers whose work has been satisfactory but who have made no effort to improve during the year ; Class III — Teachers wiiose work is not entirely satisfactory but have made a conscious effort to profit by experience and supervisory help, and who give promise of enough growth to warrant retention; Class IV — Teachers whose work and attitude have not been satisfactory enough to retain them in the system. With teachers classified into one or another of the above groups by a method which would be considered just by all con- cerned, it would be possible to say, for instance, that teachers in Class I shall receive the full regular increase, teachers in Class II half of the regular increase and teachers in Qass III be retained without in- crease. -As was stated above, the most urgent need, before the in- creases given under any schedule may produce the maximal incentive to progress, is the development of quantitative tests of teaching effi- ciency which can be fairly used by supervisory staffs, or by committees of teachers. Two other elements should enter all salary schedules in order to make them serve as mcentives to progress while teaching. These are ( I ) provision for summer study, and (2) provision for leaves of absence for study, research or educative travel. In providing for the first of these, many school systems follow the plan of making a flat allowance of $50 to the teacher who attends an acceptable summer school for the year when she attends. This is merely helping the teacher, to the extent of the amount given, to pay the extra expenses caused by attending the summer school, and makes no allowance for the fact 144 NATIONAL EDUCATION ASSOCIATION that the teacher is a stronger teacher. In many cities the number of such increases are limited to two. Better results would doubtless be obtained from the teachers and better returns on the investments for the district if this sum, for example $50, not only should be given for the year the teacher attends the summer school, but should be a permanent increase to the salary that she is otherwise entitled to. Furthermore, four such increases seem to be the minimum which should be fixt. Four is selected since the curricula of most schools are now arranged so that a year's work may be done in four summer sessions. This will enable teachers to advance their education by the unit of a year, and those holding an A. B. degree or its equivalent, to secure the master's degree in four summers. Providing for the second of these additional elements, namely, periodic leaves of absence for study, research, travel, etc., is as good an investment for a city as it is for a college and it is a commonly accepted practice among the better colleges. Such a leave on at least half pay should be granted to teachers requesting it, not oftener than once in every seven years, providing the time is to be spent in a way that will result in professional growth. 4. The Element of Flexibility in Salary Schedules In order more surely to escape the deadening effect of having salary increases, even adequate increases, become purely perfunctory and automatic, every salary schedule should have enough flexibility to adjust the wage to the needs in individual cases. Practically all the adjustments of this kind will be for teachers of special merit or ability who are worth more to the system than some others doing the same class of work, but who will be secured by other places at an advanst salary unless some local adjustment is made. This is not usually a problem unless the teacher is already receiving the maximal salary. Some salary schedules have attempted to meet this condition by pro- viding so-called "super-maximal salaries" which may be secured by teachers who secure an advanst degree or some other prescribed qualification. This condition is not entirely satisfactory, since it can, in a way, be met by fulfilling requirements. Other cities have tried to solve the situation by establishing no maximal salaries and making each teacher an individual case as she progresses in tenure. This plan makes salary progress depend upon the vote of the school board and is subject to the objections which have given rise to salary schedules in order that this may be prevented. It would be almost impossible to administer the salary schedules, especially in larger ciites, without having maximal salaries fixt. No single device will produce the needed amount of flexibilitv. Dififerent methods should be used THACHEKS' SALARIES AND SALARY SCHEDULES 145 to meet situations as they arise. For example, where it is desirable to increase a teacher's salary over what the regular schedule calls for, she may : ( i ) be changed to another position with a higher schedule ; (2) be made demonstration teacher for her subject or grade; (3) be placed in charge of a special experiment; (4) be made responsible for some assistant supervision with younger teachers; (5) be made assis- tant principal of the building in which she works; (6) be made responsible for a certain form of community service; or (7) be put in general charge of some extra school activity of the children. Many such adjustments may be made and in most cases, they will mean merely an addition to the teacher's "title," since if she is the kind of teacher who deserves the extra compensation, she will undoubtedly be doing several kinds of extra work for which she might be singled out and rewarded. The use, not to excess, of this principle of flexi- bility enables a salary schedule to remove unnecessary w^orry from the teachers, and yet retain promise enough of reward to appeal to the most ambitious. Each teacher may then strive to acquire special skill in her work, and may know that hard conscientous work at all times will undoubtedly not go entirely unrewarded. 5. Salary Schedules Should Not Make a Distinction Between the Different School Divisions. At the present time, all salary schedules make a markt distinction between the salaries for elementary, intermediate and high school teachers. Tables XXX-XXXV in Chapter I show for the cities re- porting minimal and maximal salaries the decided tendency to establish lower minimal and maximal salaries for elementary teachers than for intermediate teachers, and lower for the intermediate teachers than for high school teachers. The medians for the minimal salaries are : elementary $609, intermediate $718, high school $837, and for the •maximal salaries, elementary $867, intermediate $933 and high school $1,358. In addition to the lower salaries scheduled, it is also obvious from these tables that the range between the minimum and maximum is much smaller for the elementary teachers. An examination of the replies from the superintendents makes this more pronounst than the medians indicate. Of 151 cities below 10,000 inhabitants which gave both the minimum and maximum for elementary teachers, six per cent report a difference between the minimal and maximal salary of $50 or less, 24 per cent a difference of $100 or less, 64 per cent a dif- ference of $200 or less and 85 per cent a difference of $300 or less. This means that in more than three-fifths of the cities in Size Groups V and VI the elementary teacher cannot look forward to earning more than $200 per year more than when she begins. This is certainly 146 NATIONAL EDUCATION ASSOCIATION one of the chief reasons why teachers stay so short a time in the smaller places. Many teachers would assuredly stay in the village school where they have achieved success if to do so it did not mean both a present sacrifice of money and a lack of future prospects. The reason for this difference is the lack of preparation of so many of the elementary teachers in comparison with the high school teachers. This was particularly true twenty or twenty-five years ago, but the dift'erence in preparation has decreast materially during the past decade. Where the standards are as definitely set at six and eight years of work above the eighth grade for the elementary and the high schools (as shown by Tables XLVII, XLVIII and XLIX), it does not show a present difference which would warrant the amount of dis- tinction made in all salary schedules. Table XL, which showed that a number of superintendents expect elementary teachers to pay less for "board and room" than high school teachers, was another evidence of the difference existing between these school divisions. When this distinction is made in salary and in social status, there is no doubt that the distinction carries over to the educational relations as well. This is an unfortunate situation, and one which would be removed by putting elementary, intermediate and high school teachers upon the same salary schedule as soon as they meet the same standards of preparation. Who can say that any one of these divisions is more necessary or important than another, and consequently, why should the distinction be made either in amount of preparation considered neces- sary or in the salary paid ? There is a strong movement in the country at the present time toward this standard. Several of the normal schools have become, or are planning to become, teacher-training col- leges with full four years of professional work, while others are intro- ducing a third year's work as a step toward this standard. The equal preparation of the teachers in all three of the school divisions and equal rewards for service, equally important to the welfare of the nation, is a condition highly to be desired. 6. Salary Schedules Should Be Standardized. The need for this is especially felt in regard to schedules as they are influenst by such elements as the size of the city, the location of the city, the preparation of the teachers, and the previous experience of the teachers. Under existing conditions the smaller communities can not hope to compete for teachers with the larger cities. The smaller community is compelled to accept the inexperienst or the less competent, for as soon as the necessary experience is obtaind or as soon as a teacher demonstrates markt ability she is drawn to a larg«r place by the larger salaries paid. Exactly the same situation eidsts TEA CHEK S' SALARIES AND SALARY SCHEDULES 147 among different sections of the country, where the dift'erences in the salaries offered are as great as the differences among cities of different sizes. Tables I-VIII in Chapter I show these discrepancies. The effect of location is not as markt as that of the size of the city, how- ever, due to the added expense of travel, yet to the extent that it does exert an influence it sends the better teachers to the sections paying better salaries. The majority of salary schedules at the present time either discount or discredit entirely the experience a teacher has gained in other sys- tems, at least as far as it gives her an advanst place on the salary schedule. This practice, while it offers no inducement for remaining with the same school system, at least puts a penalty upon moving. As a consequence many teachers will not move when it would be to their advantage, unless the difference in salary offered is enough to make the lower ranking due to discredited experience. With the standard- ization which has already been made in matters of preparation, it school officials could reach some agreement on this matter so that teaching experience could be accepted year for year where it is com- parable, it would do much to unite teachers into a profession and also to destroy the restricting local influences which so predominate in many systems. In determining what experiences are comparable there seems to be no reason why, when preparation or training are equivalent, that any experience in public schools in the same divisions (elementary, intermediate, or high school) should not be taken at full value. If a teacher is good enough to be elected to the teaching corps of a given city, it would indicate that her past teaching experience, even if in a rural or village school, was probably good enough to be counted in placing her upon the salary schedule. Suggested Standards for Salary Schedules In the light of the above described elements and existing con- ditions the following standards are suggested. These are higher than common practice but are not higher than has already been accom- pHsht in some of our more progressive cities. The division of the cities into two size groups is justified by the results shown in Tables I-IV, inclusive. There is a noticeable break in salary paid between cities in size III and in size IV, while if the average of the medians for cities in size groups I, II and III is compared with the average for the cities in size groups IV, V and VI, there is a difference of approxim.ately the $200 which has been made in the following table. Of course there can not be a clear cut line drawn between a city say of 28,000 inhabitants falling in size group III and one of 23,000 in group IV, and many cities in the lower group will pay salaries as high 148 NATIONAL EDUCATION ASSOCIATION as those in the upper group which will be more to their credit than to have a larger city remain on the lower level. SUGGESTED STANDARDS FOR SALARY SCHEDULES Amount of Professional Preparation For City Size3> P, II & III For City Sizes* IV. V & VI Minimal Salary Annual Increases Maximal Salary Minimal Salary Annual Increases Maximal Salary Teachers $1200 1400 1600 2000 6 xSlOO 10 X 100 10 X 100 10 X 100 $1800 2400 2600 3000 $1000 1200 1400 1800 6 x$100 10 X 100 10 X 100 10 X 100 $1600 A. B. Degree 2200 2400 Ph. D. Degree 2800 Heads of Departments* in Intermediate or High School $1600 1800 2000 2400 8 X 100 10 X 100 10 X 100 10 X 100 $2400 2800 3000 3400 $1400 1600 1800 2200 8 x$100 10 X 100 10 X 100 10 X 100 $2200 2600 A.M. Degree 2800 Ph.D. Degree 3200 Special Supervisors S1300 1500 1700 2100 8 x$150 10 X 150 10 X ISO 10 X 150 $2500 3000 3200 3600 $1100 1300 1500 1900 8 x$150 10 X 150 10 X 150 10 X 150 $2300 A.B. Degree 2800 A.M. Degree 3000 Ph.D. Degree 3400 Principals Elementary (IS rooms or less). Normal Diploma $1800 2000 2200 2600 4 x$200 5 X 200 6 X 200 7 X 200 S2600 3000 3400 4000 $1600 1800 2000 2400 4 x$200 5 X 200 6 X 200 7 X 200 2400 2800 3200 Ph.D. Degree 3800 Elementary (16 rooms or more). Intermediate or High School (with an enrollment of less than 500.) Normal Diploma S2200 2600 2800 3200 4 xS200 5 X 200 6 X 200 7 X 200 $3000 3600 4000 4600 $2000 2400 2600 3000 4 x$200 5 x 200 6 X 200 7 X 200 $2800 A.B. Degree 3400 A.M. Degree 3800 Ph.D. Degree 4400 Intermediate (.SOO or more). High School (Between SOO and 1200) Normal Diploma vS2800 3200 3400 3800 4 x$200 5 x 200 6 X 200 7 X 200 $3600 4200 4600 5200 $2600 3000 3200 3600 4 x$200 5 X 200 6 X 200 7 X 200 $3200 A.B. Degree 4000 A.M. Degree 4400 Ph.D. Degree 5000 High School (Between 1200 and 2S00) A.B. Degree S3600 3800 4200 5 x$200 6 X 200 7 X 200 $4600 5000 5600 S3400 3600 4000 5 x$200 6 X 200 7 x 200 $4400 4800 Ph.D. Degree 5400 High School (2500 or more) A.B. Degree S4000 4200 4600 5 xS200 6 X 200 7 X 200 $5000 5400 6000 $3800 4000 4400 5 x$200 6 X 200 7 X 200 $4800 5200 Ph.D. Degree 5800 ' For explanation of the size groups see page 9 ' Large cities e. g. over 1.000.000, could add $100 or more to the above schedules to cover the additional cost of living ' Normal diploma as used here is meant to represent graduation from a standard normal school with two years work beyond the completion of four years high school, six years beyond the eight grade. ♦ Heads of departments are assumed to have at least three years of teaching experience before receiving the mini- mum. Suggestions for Administering the Above Schedule a. A teacher when elected should be placed on the salary level to which her training and experience would entitle her. h. When a teacher changes her classification by being promoted in TEACHERS' SAL.UilES .IXJJ SALAR)' SCHEDULES 149 responsibility or by earning an advanst degree she should be placed upon the new schedule at the place where her present salary would place her and be entitled to as many more increases as are open to her between that point and the new maximum. For example, in a size II city a teacher with six years' training receives four increases and then secures an A. B. degree. Her salary on the first schedule would be $i,6oo, which would be the same as if she had received two increases on the new schedule and she would be entitled to eight more — a total of twelve increases in all. c. Where it is desirable to pay some teachers more than the schedule would call for or more than the maximum provided, some of the devices previously discust under "Elements of Flexibility in Salary Schedules" should be used. d. Provision has not been made in the above schedule for different salaries for men and women because of the growing tendency not to make such distinctions. Where, however, it is desired to make such a difference the salaries for men should be set in excess of the stan- dards above mentioned rather than to make them the standards for men and lower them for the women teachers. The above salaries are not more than enough to provide a living saving wage for teachers and at the same time induce the stronger men and women to enter and remain in the profession. e. The introduction of the above schedule should not be allowed in any case to decrease any salaries, but if a teacher is receiving a salary in excess of the maximum which she is entitled to because of her preparation she should not receive further increases without additional preparation or special work. /. The suggested schedule does not make elaborate distinctions between different kinds of work, e. g., ungraded rooms, tubercular, etc. If in any city this seems advisable it will be possible to make a schedule between any of the above standards. This, however, only makes more "classes" of teachers and could be better handled by paying an extra amount for different kinds of work requiring extra preparation or which is in any way more difficult to perform. g. Care should be taken to safeguard the granting of increases so that they will not become automatic with increasing tenure. Any year when an increase is not earned or when a partial increase is earned should not decrease the possible maximum attainable by that teacher. Teachers' Salaries and Public Interest Most of the elements which keep teaching from being a profession in the truest sense can be remedied onlv thru better salaries for 150 NATIONAL EDUCATION ASSOCIATION teaching. Better salaries for teachers will not come until salary schedules are generally used and based upon more generally accepted standards than at the present time. This needed reform will not be accomplisht until teachers become intelligently interested and active in the Blatter. Among a great many people the handed-down feeling that teaching as a means of earning a living is more respectable, e. g., than the more remunerative work in some factory, has made many women, particularly, stay in teaching in spite of its poor rewards. They often excuse their poorer clothes and financial restrictions by thinking of the rewards which come to a teacher in her old age in the contemplation of hundreds of grateful pupils grown to manhood and womanhood under the benign influence of ideals imparted in her classes, a pretty romance which should end "and they all lived happily ever after" but which is more liable to end in a pauperized old age. Teachers' salaries have always been so relatively low that salary campaigns have been made on the basis of financial justice in order that teachers might even exist. The increases which have been given have never been large enough to enable the teachers to give much more service or the people to demand more in return for the additional salary. The need of more money for necessarj^ expenses is still an important factor in this countr}^. but salaries are also reaching the level in some states and a number of cities, and the increases are large enough to allow a margin of saving. When this stage is reacht it is not only possible, but entirely proper, for the public to demand more from the teachers in return — more extensive preparation, more care- ful performance of duties, and more growth during service. Much of the agitation which has been created in favor of better salaries has been near-sighted in that it was aimed primarily at the betterment of the salaries of those already teaching and not for the purpose of encouraging more people to enter, or those who do, to prepare them- selves better. In other words, salary campaigns have often been selfish rather than professional. In most cases, however, teachers have been too reticent about their work — too ready to toil on and wait for society to reward them adequately. They have allowed others to tell what the teachers should do and receive and have made no protest, — at least no protest loud enough to be heard away from the boarding- house table, — and have resorted neither to the power of numbers nor to the force of an awakened public opinion. There are far too many citizens in this country uninformed as to the work of the schools and the present cost of that work. These men and women are too ready to give expression to opinions based upon their lack of information, and these opinions find a much too ready acceptance. The following letter appearing on the editorial page of TEACHEKS' SALARIES AND SALARY SCHEDULES \Sl one of the leading Western newspapers is but typical of hundreds of others which are given similar publicity and which meet with too much public approval. Too Much is Spent on Schooli Writes Opposes Raise of Teachers' Pay and Suggests Fewer High Schools Oregonian, April 22, 1919. — (To the Editor) — I see by paper that teachers want more pay and a special election to be called. Said salary raise was voted down last November at an election costing $15,000, and now they have the nerve to call another election. I am in favor of an election if these teachers will pay for it, but otherwise not. They are the best paid women in the city, have shortest hours, easy work and are not satisfied. As a taxpayer I think I voice the sentiment of many. If they are not satisfied. let them do other work or else let the taxpayer close the schools, particularly high schools, as it is a waste of time and money and does not prepare one for the world, only for college of which we have too many now. These schools are our biggest item of expense, costing the awful sum of $3,000,000 every ten months, which shows a great waste somewhere. I am now more convinst than ever, to be taxpayer and property owner (of which these teachers are neither, not paying income or any other taxes or helping to build up a city) is to be workt to a finish. It is high time the taxpayers' eyes are opened to the demands and expectations. He gives too much for nothing and people are never satisfied. Why does this man not know more about the schools? Why are there thousands of voters'in that city who agree with him? Our twentieth-century life has become so complex, so specialized, that we can no longer hope to have "everybody" interested in "every- thing." To be sure, the schools represent an institution of more im- mediate interest to a greater number of people than any other, save the home, but even with this as an incentive, people will not inform themselves about the schools unless it is made interesting and easy for them to do so, or unless they are made in some way to realize that it is their social duty to do so. The responsibility for bringing one or both of these things to pass must rest upon teachers themselves. It has rested there and is now resting there — resting qtiietly in a sleep like that of Rip Van Winkle, deep, dense and lasting. It is time for the eflfects of the draughts from the flagons of lassitude and indiffer- ence to have worn off. The profession must awake to the realization that many changes have occurred in the past twenty-five years, in the past five years. Methods of teaching have changed, standards of preparation have advanst, the cost of living has advanst out of pro- portion to the advance in salary, and the community interest in the schools has changed — changed from the personal-individual interest 152 XJTIONAL EDUCATION ASSOCIATION to a more impersonal interest in the social efficiency of the school system. Teachers in many places have allowed themselves to become estranged from the public and from school patrons. Then when they are forced to realize that they can no longer meet their educational, social, and hygienic responsibilities upon the salaries received, they realize that this estrangement from the public is an obstacle to the recognition of their claims. They now face the task of justifying their claims by justifying their work and its results, as well as re- establishing the cordial relationships which make for mutual under* standing and cooperation. In order to do this it is necessary for teachers to know their own work, know its importance to social welfare, and consciously strive to interest the people of the community in their school and its problems, and interest them in such a way that they will insist upon having the best for their children and be willing to support the schools in such a way that this best may be secured. Teachers must insist upon adequate pay in order that the work of education may meet its present-day obligations, but it is no longer necessary to wage campaigns for increast salaries solely upon the basis of sentiment or justice to an opprest class. The case can be presented on its merits, and where campaigns have been vigorously made on the principle of educating the community on matters concerning the school to the point that they are able to recognize needs, they have almost always been successful. In such campaigns it is intended that this study of salaries and salary schedules not only will be suggetive of the kind of material to secure but will contain many facts and tables which will furnish material for comparisons with local conditions. The need for higher salaries has been proved from so many dif- ferent angles that there are facts available for arguments in practically every situation. In any city waging an educative campaign for higher salaries it is possible for those in charge of the publicity to compare the salaries paid in that city with the median salaries paid in other cities of the same size. Comparisons can be made with the wages paid in other occupations. The expenses may be easily shown to demand all or nearly all of the salaries. The amount of preparation demanded may be compared with the preparation in other positions in the same community paying as much or more salary. The inability of teachers to attend summer schools and other forms of professional advancement, to say nothing of any margin for saving, can be con- vincingly shown by a typical teacher's budget on the basis of twelve months. When facts like these are clearly shown and given the necessary TEACHERS' SALARIES A.\D SALARY SCHEDULES 153 amount of "local color" to attract attention and appeal to "local pride," there is little doubt but that the public will see the situation in its true light and demand an adjustment which is not only just but which will insure the best possible training for all children. Today we face an emergency — educational and social — which is not only going to put the democracy we fought to win, save, and per- petuate, on trial, but which in many ways is going to test the power to endure of even civilization itself. It will not be solved by states- men, politicians, financiers, labor leaders, nor agitators. It will not be solved by the present generation of citizens, who will be able only to make temporary settlements which will serve as experiments. The real solution will not, and can not, come until some of these experi- ments are made and evaluated by a people trained to think in the light of new ideals of service and social values. The responsibility, then, for the solution of the many problems of reconstruction rests with the teachers of the next decade. Never was such a responsibility placed upon any class in any society, and how unprepared they are to undertake it has been repeatedly shown during the last four years. If this emergency is to be met and civilization enabled not only to endure but to progress, it can not be done by immature, unprepared, and underpaid teachers. These conditions will be removed when a united teaching profession can bring an interested informed public to demand the highest degree of educational efficiency, and as the essential to that efficiency, to provide for every teacher a living and a saving wage. APPENDIX I List of Cities Returning the Superintendents' Questionnaire ^ *Cities whose returns came too late for general study. **Countie«, AI BI CI DI EI All BII CII State Conn. Mass. Mass *N. J. *N. Y. Pa. D. C Md. Va. *Ind. Ohio *Iowa Mo. Calif. Utah Wash. Conn. Mass. N. Y. Pa. Pa. Ark. •Ga. Ga. S. C. 111. "Mich. DII EII AIII City State City Bridgeport Conn. New Haven Fall River Mass. Lynn. Worcester N.J. Jersey City Newark N.J. Trenton New York ♦Pa. Pittsburgh Scranton Washington La. New Orleans Baltimore Tenn. Nashville Richmond Indianapolis *Mich. Grand Rapids Dayton Des Moines Minn. Minneapolis St. Louis Oakland *Oregon Portland Salt Lake City Washington Seattle Spokane New Britain *Conn. Waterbury Holyoke Mass. Brockton Schenectady N.J. Passaic Allentown N. Y. Yonkers Harrisburg Pa. Erie Little Rock Chatham County Ga. Augusta Savannah **Md. Allegany County Charleston East St. Louis *I11. Springfield Flint Ohio Springfield Kansas City *Minn. Duluth St. Joseph Okla. Oklahoma City Berkeley Calif. SanDiego Pueblo Stamford Conn. Norwich Pittsfield Maine Lewiston Montclair *Mass. Waltham Kansas Mo. "Calif. Colo. [ Conn. Mass. N.J. *• For cop> of questionnaire see insert after page 7. 154 TEACHERS' SALARIES AND SALARY SCHEDULES 155 State City State City N.Y. Jamestown N.J. Orange N. y. Newburgh N.Y. Kingston Pa. Newcastle Pa. Chester W. Va. Wheeling Pa.' Williamsport Bin Ark. Fort Smith Ky. Paducah **Md. Dorchester Co. **Md. Carroll County Texas Waco N. C. Durham cm 111. Moline Ind. East Chicago Mich. Battle Creek- Mich. Highland Park Mich. Jackson Mich. Lansing Ohio Zanesville Wis, La Crosse Wis. Oshkosh Wis. Sheboygian Wis. Superior Dili Iowa Council Bluffs Iowa Dubuque Nebr. Lincoln Okla. Tulsa EIII Calif Fresno Calif. Par^adena Calif. San Jose Calif. Stockton Idaho Boise Utah Ogden Cit^ Wash. Bellingham Wash. Everett Wash. Walla Walla AIV Conn. Ansonia Conn. Bristol Conn. Willimantic Conn. Torringtoii • Maine Augusta Maine Biddeford • Maine Sanford Mass. Beverly Mass. Easthampton Mass. Framingham Mass. Greenfield Mass. Methuen Mass. Winchester N.-H. Berlin N. H. Laconia N.J. Asbury Park N.J." Hackensack N. J. Millville N.J. North Bergen N.J. Phillipsburgh N.J. • Plainfield N.Y. Fulton N. Y. "Gloversville N. Y.. Little Falls N.Y. ■■."■ Plattsburg N.Y. Watervliet Pa. Lewiston '■"''• Pa. Bristol Pa. •"-■ ■ Phoenixville Pa. Meadville Pa. - Wilkinsburg Pa. Taylor BIV Ala. ■ Bessemer Florida Volusia County Ga. Albany Ga. Rome Md. ---i- ■ = ■■■•■• Talbot County S. C. Spartanburg Texas • - Tyler W. Va. Bluefield W. Va. - Fairmont W. Va. Moundsville W. Va. Parkersburg CIV *I11. '-^^' ■ ■^' Alton III. East Aurora 111. ' ■ ' Freeport lU. Granite^City 156 NATIONAL EDUCATION ASSOCIATION DIV EIV AV State 111. 111. 111. Ind. Mid'. Mich. ♦Ohio Ohio Ohio Ohio Wis. r Iowa Okla. Kansas Nebr. S. Dak. Ariz. Calif. Calif. "Calif. Mont. Mont. N. Mex. Conn. Maine Maine Maine Mass. Mass. Mass. Mass. Mass. N.J. N.J. Pa. Pa. Pa. Pa. Pa. Vt. BV CV Fla. Ga. Tenn. *W. Va. 111. III. City State Galesburg 111. Highland Park 111. Kankakee 111. Mishawaka Mich. Marquette Mich. Traverse City Ohio ChilHcothe Ohio Coshocton Ohio Marion Ohio Norwood Ohio Eau Claire Wis. Wis. Ottumwa Kansas Ardmore Kansas Pittsburg Minn. Grand Island N. Dak, Aberdeen S. Dak. Phoenix Calif. Riverside Calif. Long Beach Calif. Santa Barbara Idaho Anaconda Mont. Great Falls Oregon Choves County Derby Conn. Fort Kent, St. John Maine Gardiner Maine Rockland Maine Amherst Mass. Orange Mass. Saugus Mass. Wellesley Mass. Whitman N. H. Burlington N.J. Ridgewood N. Y. Corry Pa. East Pittsburgh Pa. Indiana Pa. Juniata Pa. Munhall Pa. Rockingham Vt. Seminole Ark. Dublin Miss. Park City Texas Elkins Beardstown 111. Duquoin 111. City Jacksonville La Salle Streator Holland Pontiac Cambridge Cleveland Heights Elyria Mt. Vernon Warren Marinette Wausau Hutchinson Salina Red Wing Grand Forks Sioux Falls Eureka Santa Ana Vallejo Pocatello Missoula Salem Putnam St. Francis Allagast Norway Westbrook Concord Rockland Stoughton Westborough Derry Essex Albion Ambridge Donora Huntingdon Jersey Shore Millvale Chittenden County Tcxarkana Yaroo City Orange Belvidere Herrin Tli AC HERS' SALARIES AND SALARy SCHEDULES 157 State City State City 111. La Grange 111. Madison 111. Paris Ind. Princeton Mich Boyne City iMich. Dowagiac Mich. Cheboygan ♦Mich. Ypsilanti ♦Ohio Athens Ohio Bucyrus Ohio Bellefontaine Ohio Nelsonville •Ohio Delaware Ohio Troy Ohio Salem Wis. Chippewa Falls Wis. Antigo Wis. Neenah Wis. Menasha Wis. Watertown Wis. Stevens Point Wis. West Allis uv Kans. Galena Kans. Junction City Kans. Rosedale Kans. Wellington Minn. Eveleth Mo. Carthage Nebr. Fremont Nebr. Kearney Nebr. Nebraska City N. Dak. Minot Okla. Bartlesville Okla. Durant EV Ariz. Prescott Calif. Alhambra •Calif. Han ford Calif. San Luis Obispo Colo. Grand Junction ♦Mont. Bozeman N. Mex. Santa Fe Oregon Baker Utah Logan City Wash. Centralia AVI Conn. Essex Conn. Litchfield Conn. New Canaan Conn. Seymour Conn. Southington *Conn. West port Maine Cumberland Co. Mass. Dalton Mass. Manchester Mass. Sutton Mass. Swansea, ♦Mass. Warren Mass. West port N. H. Exeter ♦N.J. Bordentown N.J. Edgewater *N.J. Haledon N.J. Hunterdon N.J. Prospect Park N.J. Wharton N.J. Woodbury N.J. Newton N. Y. Baldwinsville N. Y. Carthage N. Y. Clyde N. Y. Cornwall N. Y. Dobbs Ferr>- N. Y. Frankfort ♦N. Y. Lowville N. Y. Lyons N. Y. Mount Morris N. Y. Patchoque N. Y. Perry N. Y. Saranac Lake N. Y. Scotia N. Y. Sidney N. Y. Silver Creek ♦N. Y. Suflfern N. Y. Wellsville Pa. Birdsboro Pa. Barnesboro Pa. Ford City Pa. Delaware Pa. Jefferson Pa. Grove City Pa. Mauch Chunk Pa. Leechburg Pa. Northumberland Pa. Nazareth Pa. Renovo Pa. Parsons Pa. Slatington 158 NATIONAL EDUCATION ASSOCIATION State City State City Pa. Verona Pa. South Fork •Pa. Williamstown Vt. Franklin \ Vt. . Springfield BVI Ala. Girard Ala. Ofseliban Ala. Sheffield ♦Ala. Troy Ark. Fordyce Fla. Orlando •^ Ky. Ludlow S. C. Abbeville Tenn. Lenoir Texas Bay City Texas Jacksonville Texas Plainview Texas Stamford Va. Lexington CVI 1 111. Bushnell 111. Cooksville 1 111. Farmer City 111. Harrisburg 1 111. Lake Forest 111. Lockport IlL Morris III. Naperville lU. Robinson lU. Venice Ind. Auburn Ind. Angola Ind. Decatur Ind. Franklin Ind. KendallviUe Ind. North Vcaraon Ind. Rochester Ind. Warsaw Mich. Greenville Mich. Gladstone Mich. St. Johns-i Mich Onaway Ohio Crooks ville Mich. Crystal Falls Ohio Kent Ohio East Palestine Ohio Shelby Ohio Medina Wis. Two Rivers Wis. Kaukauna DVI Iowa Chariton Iowa Cherokee Iowa Eagle Grove Iowa Indianola Kans. Beloit Kans. Cherryvale Kans. Horton Kans. Larned Kans. Neodesha Kans. Osawatomie Minn. St. Peter Minn, Staples Minn. Wabasha Minn. Waseca Mo. Excelsior Springs Mo. Kirkwood Mo. Monette *Mo. Slater N. Dak. Dickinson N. Dak. Jamestown Okla. Frederick Okla. Woodward S. Dak. Redfield EVI Calif. Emeryville Calif. Tulare Calif. Monrovia Calif. Nevada City Calif. Oroviile Calif. Red Bluff Colo. Alamosa *Colo. Montrose Colo. SaHda Idaho Nam pa Idaho Weiser Mont. Havre Mont. Miles Nev. Tonopah N. Mex. Raton Oregon Albany Wash. Ellensburg Wash. Kittitas Wash. Pullman Wash. . Renton Wyoming E-vanston APPENDIX II LIST OF CITIES Ax\D COUNTIES FROM WHICH REPLIES TO TEACHERS' QUESTIONNAIRE! WERE RECEIVED. Arranged Alphabetically by States and Cities with the size group and number of replies indicated for each city. State & City Size No. of State & City Size No. of Group Replies Group Replies Alabama (B) Stamford III 156 Troy VI 25 Thomasville VI 3 Torrington IV 90 Arizona (E) Unionville VI 3 Phoenix IV 30 Westport VI 30 Prescott V 98 Florida (B) Arkansas (B) Altamonte Springs VI 1 Fort Smith III 33 Apopka Chuluota VI VI 5 1 California (E) Forest City VI 1 Alhambra V 70 Geneva VI 3 Bakersfield IV 55 Koloku VI 1 Berkeley II 150 Lake Monroe VI 1 Eureka IV 48 Lockbart VI 1 Fresno III 200 Longwood VI 4 Long Beach III 150 Maitland VI 2 Monrovia VI 21 Ocokee VI 1 Oakland I 550 Orlando VI 1 Pasadena III 80 Oviedo VI 11 Red Bluff VI 13 Paola VI I Riverside IV 241 Pine Castle VI 1 San Jose III 4 Sanford VI 28 Santa Ana IV 71 Tangerine VI 1 Santa Monica V 50 Wintergarden VI 2 Tulare VI 20 Zellwood VI 1 Colorado (E) Georgia (B) Colorado Springs III 1 Augusta II 113 Denver I 53 Idaho (E) Montrose VI 50 Boise III 87 Pueblo n 104 Nampa VI 30 Salida VI 33 Illinois (C) Connecticut (A) Aurora III 30 Ansonia IV 12 Belvidere V 55 Collinsville VI 1 Canton IV 30 Enfield IV 2 Carterville VI 13 Essex VI 2 Decatur III 150 Farmington VI 8 East St. Louis II 71 Litchfield VI 9 Farmer City VI 12 New Britain II 55 Freeport IV 66 Norwich III 83 Galesburg IV 75 Old Saybrook VI 1 Granite City IV 50 Seymour VI 2 Herrin V 43 Southington VI 12 Hillsboro VI 30 ' For copy of questionnaire see pags 8. 159 160 NATIONAL EDUCATION ASSOCIATION State & City Size No. of State & City Size No of Group Replies Group Replies Lake Forest VI 20 Gardiner V 6 La Salle IV 18 Gorham V 4 Lockport VI 75 Lewiston III 20 Madison V 18 Norway VI 13 Naperville VI 20 Oxford VI 3 Ottawa V 25 Portland II 4 Rock Island III 122 Rockland V 12 Streator IV 16 Sanford IV 27 Venice VI 11 South Paris VI 2 Springvale VI 2 Indiana (C) Waterford VI 4 Anderson IV 7 Crawfordsville IV 50 Maryland (B) Decatur VI 26 Baltimore County I 1 East Chicago III 59 Carroll County IV 88 Franklin VI 6 Easton & vicinity VI 32 Gary IV 3 Western Maryland VI 60 Goshen V 49 Indianapolis I 2 Massachusetts (A) Kendallsville VI 20 Amherst V 33 Madison V 30 Andover V 10 Mishawaka IV 75 Arlington IV 6 Vincennes IV 71 Barre VI 14 Beverly IV 75 Iowa (D) East Hampton IV 17 Cedar Rapids III 4 Fall River I 40 Clinton III 28 Gilbertville V 1 Des Moines I 225 Greenfield IV 4 Eaglegrove VI 1 Saugus V 25 Indianola VI 1 Manchester VI 5 Oelwein V 45 Methuen IV 50 Ottumwa IV 120 Northampton IV 1 Petersham VI 7 Kansas (D) Somerset VI 8 Abilene VI 25 Springfield I 200 Beloit VI 1 Swansea VI 4 Galena V 10 Waltham III 50 Horton VI 23 Wellesley V 14 Hutchinson IV 75 Whitman V 21 Junction City V 40 Worcester I 10 Leavenworth IV 20 Osawatomie VI 25 Michigan (C) Topeka III 11 Allegan VI 33 Wellington V 167 Battle Creek III 100 Cheboygan V 31 Kentucky (C) Crystal Falls VI 50 Paducah III 83 Dowagiac V 35 Grand Ledge VI 24 Maine (A) Greenville VI 16 Augusta IV 100 Highland Park III 125 TEACHERS' SALARIES AND SALARY SCHEDULES 161 State & City Size No. of State & City Size No. of Group Replies Group Replies Holland IV 25 New Jersey (A) Iron wood IV 89 Asbury Park IV 84 Lansing III 30 Bordentown VI 11 Marquette IV 53 Burlington V 6 Onaway VI 17 Edgewater VI 10 Pontiac IV 105 Garfield IV 6 River Rouge VI 27 Granton VI 1 Saginaw II 130 Hackensack IV 70 St. Johns VI 13 Haledon VI 18 Traverse City IV 67 Irvington IV 78 Ypsilanti V 35 Millville IV 77 Montclair III 168 Minnesota (D) Newton VI 30 Albert Lea V 25 North Bergen IV 100 Brainerd V 24 Passaic II 63 Duluth II 320 Phillipsburg IV 12 Little Fails V 37 Plainfield IV 139 Montevideo VI 20 Red Wing IV 50 New Mexico (E) Stillwater V 25 Las Cruces VI 29 St. Paul I 10 Raton VI 13 St. Peter VI 20 Roswell V 196 Wabasha VI 15 Santa Fe V 40 Waseca VI 9 Winona IV 75 New York (A) Albion V 29 Mississippi (B) Carthage VI 8 Yazoo Citj- V 10 Dobbs Ferry VI 14 Fulton IV 66 Missouri (D) Jamestown III 88 St. Joseph II 175 Le Roy VI 14 Mt. Morris VI 13 Montana (E) Newburgh III 50 Great Falls IV 96 Patchogue VI 30 Lewistown VI 7 Plattsburg IV 29 Miles City VI 34 Saranac Lake VI 40 Missoula IV 43 Silver Creek VI 11 Suffern VI 25 Nebraska (D) Syracuse I 18 .\lliance VI 27 Walton VI 30 Falls City VI 25 Watervliet IV 32 Kearney V 34 Wellsville VI 24 Lincoln III 250 North Carolina (B) Nevada (E) Durham III 42 Tonopah VI 9 Greensboro IV 100 New Hampshire (A) North Dakota (D) Portsmouth IV 30 Dickinson VT 25 162 NATIONAL EDUCATION ASSOCIATION State & City Size No. of State & City Size No. of Group Replies Group Replies Ohio (C) Punxstawney VI 36 Athens V 15 Renovo VI 15 Bellefontaine V 30 Scranton I 300 Cambridge IV 50 Sidman VI 1 Chillicothe IV 25 South Fork VI 15 Cleveland Heights IV 64 Verona VI "7 Columbus I 375 Williamsport III 75 Crooksville VI 20 Delaware V 35 South Carolina (B) East Palestine VI 1 Charleston II 91 Elyria IV 50 Spartanburg IV 39 Gallipolis V 20 Lima III 50 South Dakota (D) Kent VI 41 Aberdeen IV 67 Mansfield IV 100 Sioux Falls IV SO Mt. Vernon IV 37 Nelsonville V 31 Texas (B) Norwood IV 50 Austin III 60 Shelby VI 18 Bay City VI 1 Zanesville III 21 Tyler IV 50 Oklahoma (D) Utah (E) Bartlesville V 50 Logan V 34 Durant V 1 Odgen III 69 Guthrie IV 60 Salt Lake City I 1 Tulsa III 238 Vermont (A) Oregon (E) Bellows F"alls VI 6 Albany VI • 25 Rutland IV 100 Baker V 34 Dalles VI 20 Salem IV ^3> Virginia (B) Hewlett VI 1 Pennsylvania Ambridge (A) ■ V 48 Lexington Richmond VI I 2 300 Birdsboro VI 20 Carry \' 20 Washington (E) Conshohocken V 31 Aberdeen IV 1 Duryea V 25 Bellingham III 120 Erie II 5 Centralia V • 47 Ford City VI 9 Everett III 50 Freedom VI 20 Pullman VI 17 Jersey Shore V 27 Renton VI 26 Johnstown II- - 229 Roslyn VI 22 Juniata V 25 Seattle 1 500 Kittanning VI 1 Spokane I 25 Mauch Chunk VI 4 Walla Walla III 65 Millvale V 16 Nazareth VI ■ ■-•-• --"15 Wisconsin "(C)- Oakmont VI 4 Eau Claire IV 75 TEACHERS' SALARIES AND SALARY SCHEDULES 163 State & City Size No. of State & City Size No. of Group Replies Group Replies Kaukauna VI 28 Superior III 14 La Crosse III 71 Two Rivers VI 26 Menasha V 25 West Allis V 60 Merrill V 35 Neenah V 41 Wyoming (E) Plymouth VI 1 Evanston VI 5 Sheboygan III ion Sheridan IV 40 APPENDIX III A coefificient of correlation is an index of the closeness of relation between two items. It is represented by values of "r" which range from + i.oo (perfect relation) where a given rank or position in one item always goes with the same rank or position in the other item ; thru the intermediate values to .o (chance relation) where it is purely chance whether a given rank or position in one item will go with the same rank or position in the other item ; thru the intermediate values to — 1.00 where a given rank or position of one item always goes with the opposite of that rank or position in the other item. Thus, a coefficient of correlation between "salary received" and "experience" of r = -f~ i> would indicate that the greater the experience the more the salary received ; r = .o would indicate no relation between the two, while r = — i. would mean that the less the experience the higher the salary, or the lower the salary, the more the experience. To find coefficients of correlations by Sheppard's method of unlike signs involves the division of the correlation table (Table L) into quadrants by the medians of the two distributions. Individual cases falling above or in excess of the medians in either distribution are said to be positive ( + ) for that distribution and those falling below the median in either distribution are said to be negative ( — ). Sheppard's formula involves the finding of the percentage which the measures of unlike signs are of the total number of measures. This gives a value "U" which is transferred to a value of "r" from a table. ^ In the distribution tables used in these studies, it was not pos- sible to locate the median within any step and divide the cases falling upon that step in the proper quadrant. Thus, in Table L the Median for the "salary" is $910, and the median for "age" is 31.6 years. Thorndike^ gives an adaptation of Sheppard's formula to provide for the "zero cases" — those falling within the median steps. ( In Table L the "$900 step" for salary and "30 years" step for age). Because of the nature of the material and the number of cases involved a simpli- fication of Thorndike's formula was used. In determining the limits of the quadrants, if the median fell within the first fourth of the step, the line was drawn at the beginning of the step, if it fell within the middle half of the step, the lines were drawn at the beginning and close of the step, and if the median fell within the last fourth of the step the line was drawn at the close of the step. (Heavy lines indicate where quadrant division occur in Table L.) This method insures that the misplacement of measures in counting the number in the quadrants 1 Thortidike Mental and .Social Measurements — page j-i. Teacher's CoUefre, Columbia University. 164 TEACHERS' SALARIES AND SALARY SCHEDULES 165 can never be more than % of the cases falling within the median step. The value of "U" was then determined by the formula U-- n where "u" is the sum of the cases with unlike signs, "n" the total num- ber of cases and "d" the "zero pairs" falling within the median step. The process for the distribution table shown in Table L will serve as an illustration. =r + 74 24 + 22 + + 73 u = (24 + 22) +3/2 (19) 55-5 = -26 From table, .6848 212 212 y^ From ta d = 19 This shows a distinct relation between "age" and "salary received" for the teachers in this group. It is observable from the table that there is a markt tendency for the teachers who are above the median age to be above the median salary also, and for those below the median age to be below the median salary. Where the cases were irregular or buncht heavily upon the median step, the value of "r" was checkt by finding the "coefficient of mean square contingency"^ which "is built up by reference to the theory of probability, and measures relationship in terms of the difiference between the numbers of measures actually found in the various compartments of the correla- tion table (or 'contingency' table more generally), and the numbers that might be expected there by pure chance." The coefficient of mean square contingency gives a value "C" which may be interpreted in the same way as a value of "r" even tho they are by no means synonomous. The me thod of securing "C" is by the formula C = V N + X' 74 (47) 5 (9) 14 (10) 24 (47) 103 X 96 ^ 212 = 47 103 X 19^212=: 9 103 X 97 -^ 212 = 47 109 X 96 -^ 212 = 49 109 X 19 -^ 212 = 10 T09 X 97 -T- 212 = 50 103 2"^ ^(49) 73 (5o)| 109 96 1 19 97 1 212 1 Pearson's tables for Statisticians and Biometricians — page 35, Cambridge University Press. Yule Theory of Statistics — page 64, C. Griffin Co. Rugg Statistical Method Applied to Echicatioii, HouKton Mifflin Co. 166 NATIONAL EDUCATION ASSOCIATION (74r— 47)» (9—5)' (47—24)' (49—22)* (14—10)' (73— 50)» X«= + + + + + 47 9 47 272 42 232 272 42 23« X» = — + -+—+— +— + — 47 9 47 49 10 50 49 10 50 X» = 55.7 C = = V^-^ = .46 212+55.7 1 This gives a lower coefficient than r = .68 obtained by Sheppard's formula, but it indicates very clearly the presence of a relation between the two items — salary and age, for that group of teachers. Allowance must also be made in interpreting coefficients of mean square con- tingency, for the fact that in tables of 4 compartments the greatest possible value of "C" i. e. for perfect correlation, would not be greater than C=.yi. For 6 compartments the highest possible value must be between C = .71 and C = .82 which is the highest possible value for 9 compartments. Not more than Qcompartments were used in this study. This will greatly decrease the seemingly great difference be- TABLELXIX TABLE SHOWING COMPARISONS FOR CERTAINISELECTED ITEMS BETWEEN COEFFICIENTS OF CORRELATIONS (Computed by Modification of Sheppard's Method of Unlike Signs)i AND CO- EFFICIENTS OF MEAN SQUARE CONTINGENCY^ COMPUTED FOR THE SAME ITEMS Group and study A B c D E IV. Experience and Salary (1) r = C = .55 .37 r = c = .67 .48 r = C = .31 .23 r = c = .34 .31 r = c - .39 .27 Difference between C and r. . . .18 .19 .08 .03 .12 IV. Living Expenses and Salary (2a) r = C = .71 .47 r = c = .61 .48 r = c = .68 .47 r =• C = .70 .47 r — c = .68 .49 Difference between C and r. . . .24 .13 .21 .23 .19 IV. % of Salary Spent for Living . (3a) Expenses and Salary r = c = — .34 — .24 C = — .25 .26 r = — C = — .23 .18 C = — .04 .04 r = c = — .03 — .09 Difference between C and r. . . .10 .01 .05 .00 .06 IV. Increase or Decrease in % of Salary Spent and salary . . . (4) r => c = — .06 — .07 C = — .31 .24 r =» C = .03 .06 r = C = .16 .18 r = C = — .06 — .35 Difference between C and r. . . .01 .07 .03 .02 .29 IV. Recreation, Professional (5a) Advancement and Salary. r = C = .34 .23 r = c = .00 .08 r = C = .09 .06 r = C = .19 .12 r = C = .25 .17 Difference between C and r. . . .11 .08 .03 .07 .08 IV. Total Expenses and Salary (6a) r ■= C = .78 .55 r — c = .66 .53 r = C = .60 .44 r ^ C = .76 .49 r = C = .72 .53 Difference betwen C and r .23 .13 .16 .27 . .19 1 1 IV. Total Schooling and Salary (9) r «= C=> .06 .13 r =« — C = — .56 .35 r =• C = .13 .13 r = — c = — .22 .24 r = C- — .17 1 -.13 Difference between C and r. . . .07 .21 .00 .02 .04 j ' For explanation of modification see page 165 ' For method of securing coefficient of mean square contingency see page 165. TEACHERS' SALARIES AND SALARY SCHEDULES 167 tween the r = .68 and the C = .46 found for Table L. Sevent)'- eight of the correlations were checkt by having coefficients of mean square contingency computed, 35 of them are arranged in Table LXIX for seven typical studies for Group IV for all geographical groups. In only one case of the 78 contingency coefficients was there difference enough between the findings to materially change the correlation which might be said to exist. The case in point was Group IV E where an r of — .06 becomes a C of — .35. The relationships shown by the coefficients in Tables LV and LVI may, therefore, be taken as indicative of the presence or absence of relationships in vary- ing degrees on a coarse scale. In getting an index for the different size groups the averages of the coefficients of correlation are made and the probable error^ of this average computed. The probable error seems large in many cases due to the small number of coefficients averaged. I p. E. computed by formula P. E. = -f- .6745 ° - ^- in which n = 5 except in Group V where it is 4 • n BIBLIOGRAPHY Note: Further bibliographies are contained in the references markt with a *. American Society of Civil Engineers. Report of Special Committee to Inves- tigate Conditions of Employment and Compensation of Engineers, Dec. 1914. *Boykin, J. C, and King, Roberta. The Tangible Rewards of Teaching. U. S. Bureau of Education, Bulletin No, 16, 1914. Brown, J. C. State Normal Schools and the War. School and Society, Vol. 7, p. 695. Bruere, Robert and Martha. Increasing Home Efficiency. Macmillan. Bureau of Labor Statistics. Monthly Reviews for years 1914-1919. Chapin, Robert Coit. Standards of Living Among Workingmen's Families in New York City. Russell Sage Foundation. Chicago, Teachers Salary Conference. Comparison of Increase in Cost of Living and Elementary Teachers' Salaries. 1909. *Chilson, W. S. Comparative Study of Salaries of Elementary and High School Teachers in a Selected Group of Cities in U. S. 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