m
 
 THE LEGISLATIVE CONTROL 
 OF STATE NORMAL SCHOOLS 
 
 BY 
 LAWRENCE BENJAMIN HILL, Ph. D. 
 
 PROFESSOR OF EDUCATION 
 WEST VIRGINIA UNIVERSITY 
 
 NEW YORK 
 192 1
 
 COPYRIGHT 1921, BY LAWRENCE B. HILL
 
 Lfc 
 
 ACKNOWLEDGMENTS 
 
 THE writer is indebted to Dean James E. Russell, of Teach- 
 ers College, for pointing out the field of this study ; to Pro- 
 fessors William C. Bagley and David Snedden, of Teachers 
 College, for constructive criticism, guidance and encouragement ; 
 and to his many normal school colleagues for assistance in 
 furnishing the data.
 
 CONTENTS 
 
 Page 
 
 INTRODUCTION 7 
 
 CHAP. I. LEGISLATIVE PROVISIONS FOR THE CONTROL OF 
 
 STATE EDUCATIONAL INSTITUTIONS .... 11 
 
 The Data 
 
 Graphs 
 
 Summary 
 
 CHAP. II. SIGNIFICANCE OF DIFFERENT TYPES OF BOARDS 
 
 OF CONTROL 86 
 
 The Function of a Board 
 
 Types of Boards 
 
 Multiple vs. Unit Boards 
 
 Detailed Provisions for a Unit Board 
 
 Summary 
 
 CHAP. III. PROVISIONS RELATING TO TEACHER TRAINING 
 AGENCIES PROPOSED FOR LEGISLATIVE ENACT- 
 MENT 124 
 
 State Board of Education 
 
 Distinctive Features of Proposed Legislation 
 
 CHAP. IV. RESULTS OF SUGGESTED PROVISIONS .... 131 
 Details of Forms Recommended 
 
 APPENDIX A. TYPE REPORTS 158 
 
 APPENDIX B. COMPARATIVE COSTS 163
 
 INTRODUCTION 
 
 State-controlled institutions have at least two important parts 
 in their make-up. The one part consists of certain regulative 
 provisions made by the commonwealths which sanction the ex- 
 istence of such institutions, and which set forth in very general 
 terms a few provisions for their control. The other part con- 
 sists of the administrative machinery of the institution itself, 
 its materials, programs, traditions, standards and methods. 
 The latter part concerns many people; the first part compara- 
 tively few. The many often realize that the processes of the 
 institution are influenced by the first part, but they fail to see 
 or understand how, when, or why. The few people who are re- 
 sponsible for the first part are generally well-disposed towards 
 the many and intend that all their actions shall work advan- 
 tageously for them; yet they often fail to realize the effect of 
 such actions upon the processes of the institution itself. The 
 importance of the interplay of the two parts is often overlooked, 
 and those working diligently in the one often wonder why the 
 other is not more efficient. The public at large is interested 
 in aims and results, and rightly views these two parts of in- 
 stitutional life as essential factors working as one unit to ac- 
 complish the originally conceived purpose. 
 
 For seven years the writer has observed, from two different 
 positions within state educational institutions, the interplay of 
 the two parts mentioned above. He has collected evidence that 
 the efficiency of a state educational institution, particularly 
 one whose duty it is to train teachers, may be affected by the 
 legislative provisions made for its board (or boards) of control, 
 by the board's conception of its own duties, and by the ideal 
 which it sets for the personnel of the institution, especially for 
 the chief executive. The problem, therefore, is to show how the 
 provisions made by legislative enactment and the interpreta- 
 tion of these provisions, affect teacher training agencies. It is
 
 8 Legislative Control of State Normal Schools 
 
 taken for granted that a large part of the efficiency of any edu- 
 cational institution is due to the persons most intimately con- 
 cerned with its work, the classroom teachers and the students. 
 More generally speaking, efficiency is accomplished through 
 the teaching that the institution provides. It is our contention, 
 however, that the teaching is vitally affected by the provisions 
 for control, and especially by the interplay of board and execu- 
 tive head of school. Out of this accepted assumption, certain 
 questions arise: What is the best type of board that a state 
 can provide by legislative enactment for the control of its 
 teacher training agencies? What details should be included in 
 the provisions of the law? What kind of organization should 
 the board provide for its own work? What kind should it pro- 
 vide for the work within the institution itself? What evidences 
 are there that many states need to modify their legislative pro- 
 visions relating to the control of teacher training agencies? 
 What advantages would come to these institutions from such 
 provisions suggested by the answers to these questions? 
 
 Most of the material relating to legislative control of educa- 
 tional institutions is found in the statutes of each state. In 
 every case the special compilation of school laws was consulted 
 as a help in interpreting the statutes. The provisions for edu- 
 cational control were carefully charted as found in Chapter I; 
 graphs were constructed showing the relationship of the differ- 
 ent provisions such as found in Chapter II ; these, together 
 with certain other data used in the study were sent to two or 
 more selected men in administrative positions in each state with 
 the request that they check each item for accuracy, and supple- 
 ment each part so as to make the study complete and typical 
 for their own state. Much of the objective material used in 
 Chapter III was collected while the writer was in administrative 
 work in a state normal school and could secure it at first hand. 
 Other schools were visited, new material collected and the old 
 verified in this way. The forms suggested for use by boards of 
 control and by institutions were constructed out of practical ex- 
 perience, and by comparing those used by the writer with simi- 
 lar forms collected from other state normal schools. These
 
 Introduction 9 
 
 forms, together with other material, are on file in Teachers 
 College, Columbia University. Many of the opinions quoted in 
 this study are frank statements made by one administrator to 
 another rather than statements worded at the request of a stu- 
 dent. 
 
 The statutory provisions relating to the control of educational 
 institutions have been collected from forty-four states. Since 
 the study is centered upon special teacher training institutions, 
 primarily upon state normal schools, the states of Delaware, 
 Florida, Nevada, and Utah are omitted because they have no 
 typical state-controlled normal schools. The data contained in 
 Table 1 are intended primarily to throw light upon the manner 
 of controlling state normal schools ; hence, the board controlling 
 the normal is placed first in the outline. Boards controlling 
 state universities are placed second, and are included because 
 of the activity of universities in training teachers. The other 
 boards listed are boards of educational or financial control, and 
 are included in order to show the type of state control and be- 
 cause of their interrelationship with teacher training activities. 
 The boards listed include practically all the boards provided 
 by each state for educational control. Those omitted are minor 
 ones which, if included, would not affect one's understanding 
 of the state's type of control. At the head of each board in the 
 list is placed the state superintendent or commissioner of edu- 
 cation because of the relationship which he sustains to many 
 boards of control. 
 
 The method of procedure in presenting the problem and its re- 
 lated questions was (1) to select and exhibit the data which are 
 germane to the questions; (2) to present the advantages and 
 disadvantages of the details involved; (3) to present authorita- 
 tive opinions and studies in the field of educational and business 
 control which have set certain criteria; (4) to judge by these 
 standards and criteria the efficiency of existing forms of edu- 
 cational control of teacher training agencies; (5) to suggest 
 provisions for future legislative enactment for the control of 
 teacher training agencies; (6) to set forth certain advantages 
 to a state-wide program for training teachers resulting from 
 such legislative provisions.
 
 CHAPTER I 
 
 LEGISLATIVE PROVISIONS FOR THE CONTROL OP 
 STATE EDUCATIONAL INSTITUTIONS 
 
 SECTION A 
 THE DATA 
 
 The purpose of this section is to exhibit the main legislative 
 provisions that relate to the control of state normal schools and 
 state universities, and to the control of other state educational in- 
 stitutions. All existing legislative enactments relating to state 
 normal schools are represented in the data. Most of the legis- 
 lative provisions and constitutional enactments relating to state 
 universities are included. Sufficient examples of legislation re- 
 lating to other state educational institutions are given to set 
 forth clearly the type of general educational control in each 
 state. It should be noted that the outline presented in Table 1 
 provides seven items, each more or less important for the control 
 of educational institutions, as will be shown later in the study. 
 Under the name of each state will be found (1) the exact title of 
 each governing body; (2) a brief statement of the function of 
 that body; (3) the number of members, distinguishing between 
 regular and ex officio members; (4) the qualifications (wherever 
 they were listed in the statutes) ; (5) the method of choosing the 
 members; (6) the length of term; (7) the compensation. 
 
 Wherever a blank space is found following the title of a gov- 
 erning body it may be inferred by the reader that the caption 
 heading does not apply to the governing body, or that the in- 
 formation called for by the heading could not be secured through 
 reasonable effort.
 
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 Qualified 'elect- 
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 Qualified elec- 
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 1921
 
 Legislative Control of State Institutions 
 
 37 
 
 
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 W ^C. ^J ^4 O 
 
 
 
 
 ^d-SloJ^o "S 
 
 Ul 
 
 
 "S "* ^3 .2 fl -H 
 
 H 
 
 
 l|a!l| 1 
 
 co 
 
 
 |af|l3 a 
 
 
 
 a 
 
 " V " v I: '3 ^ . 
 
 u 
 
 u 
 
 lA^itS^ * g-tj 
 
 J 
 
 a 
 
 
 
 3 
 
 S m g d,""^ | 
 
 
 
 m 
 
 
 Z 
 
 
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 ^^oi 5 !^. S| 
 
 I 
 
 
 2'o C) '3 J Srn 
 
 CO 
 
 
 ^"i acid's 5 
 
 1 
 
 
 CD o (-1 Q u_> e rti 
 
 xsoCaoo-S +3 
 
 UJ 
 
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 S3 OB w 
 
 43 cj 
 
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 flCng ^^ ^ 
 
 CO 
 
 < 
 
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 O-g'o 
 
 O ^-H O S ^ / s 
 
 o "=2 & w 
 
 g 02^^ Qo .2 OM 
 
 
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 9 H a> rt *-c 
 
 COHM CB-U-wS "p-M 
 
 O-i^'O "^Ort^S t ^ 
 
 
 fe 1 
 
 ^ -2.0 -"S^Mg t.
 
 Legislative Control of State Institutions 55 
 
 SECTION B 
 GRAPHS ANALYZING THE DATA 
 
 In Section B will be found a series of graphs made by analyz- 
 ing the data in Section A, showing the source of authority, how 
 each board is provided, the relationship which these boards 
 sustain to each other, and the relationship which the state super- 
 intendent and governor sustain to each board. A continuous 
 
 line in the graphs indicates at its beginning the 
 
 source of authority and at its end its creation through election 
 or appointment. A broken line shows at the be- 
 ginning its source of authority, and at its end its cre- 
 ation, but in each case the source of authority retains an 
 ex-offido relationship to the board created. In some cases 
 he is ex-officio president, in some he is secretary, and in 
 
 others he is a member. A dotted line 
 
 indicates ex-officio relationship only; it may be that of pres- 
 ident, secretary, or member. Thus, in Alabama the people elect 
 the governor and the state superintendent. The governor ap- 
 points the state board of control. He also appoints four other 
 boards and retains an ex-officio membership in each. The state 
 council of education is made up entirely of ex-officio members. 
 The state superintendent is an ex-officio member of the state 
 council of education, and of the state normal school board. In 
 comparing the different graphs the different state attitudes to- 
 wards educational control will readily be noted. A striking 
 contrast may be seen in the unit vs. the multiple type of control 
 by comparing Vermont and Mississippi.
 
 56 Legislative Control of State Normal Schools 
 
 ALABAMA 
 
 ARIZONA
 
 Legislative Control of State Institutions 
 ARKANSAS 
 
 57 
 
 CALIFORNIA
 
 58 Legislative Control of State Normal Schools 
 
 COLORADO 
 
 '-[si/M^n 
 
 CONNECTICUT
 
 Legislative Control of State Institutions 
 GEORGIA 
 
 59 
 
 IDAHO
 
 60 Legislative Control of State Normal Schools 
 
 ILLINOIS 
 
 INDIANA
 
 Legislative Control of State Institutions 61 
 
 IOWA 
 
 KANSAS
 
 62 Legislative Control of State Normal Schools 
 
 KENTUCKY 
 
 LOUISIANA
 
 Legislative Control of State Institutions 
 MAINE 
 
 63 
 
 MARYLAND
 
 64 Legislative Control of State Normal Schools 
 
 MASSACHUSETTS 
 
 COTTI JEduo. _ y.. 
 
 MICHIGAN
 
 Legislative Control of State Institutions 
 MINNESOTA 
 
 65 
 
 MISSISSIPPI
 
 66 Legislative Control of State Normal Schools 
 
 MISSOURI 
 
 MONTANA
 
 Legislative Control of State Institutions 
 NEBRASKA 
 
 67 
 
 NEW HAMPSHIRE 
 
 dor.
 
 68 
 
 Legislative Control of State Normal Schools 
 NEW JERSEY 
 
 NEW MEXICO
 
 Legislative Control of State Institutions 
 NEW YOKK 
 
 69 
 
 NORTH CAROLINA
 
 70 Legislative Control of State Normal Schools 
 
 NORTH DAKOTA 
 
 OHIO
 
 Legislative Control of State Institutions 
 OKLAHOMA 
 
 71 
 
 OREGON
 
 72 Legislative Control of State Normal Schools 
 
 PENNSYLVANIA 
 
 RHODE ISLAND
 
 Legislative Control of State Institutions 73 
 
 SOUTH CAKOLINA 
 
 SOUTH DAKOTA
 
 74 Legislative Control of State Normal Schools 
 
 TENNESSEE 
 
 TEXAS
 
 Legislative Control of State Institutions 
 VERMONT 
 
 75 
 
 VIRGINIA 
 
 si* t* ej. &. K.. /*,, <( v.t.t B :f **? "-' "'-''
 
 76 Legislative Control of State Normal Schools 
 
 WASHINGTON 
 
 WEST VIRGINIA
 
 Legislative Control of State Institutions 
 WISCONSIN 
 
 77 
 
 WY03IING 
 
 Treasurer 
 
 
 G-et-frntt
 
 78 Legislative Control of State Normal Schools 
 
 SECTION C 
 SUMMARY OF THE DATA 
 
 In this section will be found tables showing a summary of the 
 data presented in detail form in Section A, and of the salient 
 points shown in graphic form in Section B. An attempt has been 
 made to select and arrange the facts so as to throw light upon the 
 questions raised by the study. 
 
 In Table 2 will be found the main types of institutional con- 
 trol. These are, in the main, state or local, unit or multiple. 
 These types hold for the general control of all state institutions, 
 for the general control of all teacher training agencies, and for 
 the control of special teacher training agencies such as depart- 
 ments of education and normal schools. Later in the study a 
 form of multiple control will be referred to as a dual multiple 
 type. This cannot be shown in this table, but will be described 
 in its proper setting. 
 
 In Table 3 the different methods of choosing board members, 
 the number of members and the length of term will be found 
 listed by states. This table should read : Alabama has a normal 
 school board composed of six regular and two ex-officio members 
 appointed by the governor for a term of twelve years ; a finan- 
 cial board composed of three regular members appointed by the 
 governor for an indefinite term. Tables 4, 5 and 6 will present 
 frequency distributions of the facts presented in Table 3 under 
 the head of number of members and length of term. The first 
 part of each division in Table 4 should read as follows: One 
 state has two regular members on its normal school board, two 
 states have three regular members; fourteen states each have 
 one ex-officio member, seven have two each ; two states have each 
 a total of three members, two have four ; in one state the length 
 of term is two years, in one the term is four years. 
 
 Owing to the part which the unit type of board of control 
 plays in this study the states which have this type of control 
 are exhibited in separate tables. Such an exhibit will be found 
 in Table 7, followed by a frequency distribution of the number 
 of members and length of term in Table 8.
 
 Legislative Control of State Institutions 
 
 79 
 
 TABLE 2 
 
 SUMMARY OF TTPES OF STATE INSTITUTIONAL CONTROL 
 STATE (S) vs. LOCAL (L) AND UNIT (U) vs. MULTIPLE (M) 
 
 
 General 
 
 Teacher Tr'g 
 Agencies 
 
 Spec. Teacher Trn'g Agn'es 
 
 Depts. Educ. || Nor. Schools 
 
 S 
 
 L 
 
 D 
 
 M 
 
 S 
 
 L 
 
 U 
 
 M 
 
 S 
 
 L 
 
 U 
 
 M 
 
 S 
 
 L 
 
 D 
 
 M 
 
 Alabama 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Arizona 
 
 o 
 
 
 
 
 X 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 Arkansas 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 California 
 
 
 
 
 
 
 X 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 Colorado 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Connecticut 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Georgia 
 
 
 
 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 Idaho 
 
 X 
 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Illinois 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Indiana. 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Iowa 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Kansas 
 
 X 
 
 
 
 X 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Kentucky 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 X 
 
 X 
 
 Louisiana 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 Maine 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Maryland .... 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Massachusetts 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Michigan. 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Minnesota .... 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Mississippi . .. 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Missouri .. . 
 
 
 
 
 
 
 X 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 Montana . 
 
 X 
 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Nebraska 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 New Hampshire 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 New Jersey 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 New Mexico_ 
 
 
 
 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 New York. 
 
 X 
 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 North Carolina. ... 
 
 
 
 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 North Dakota 
 
 X 
 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Ohio._.' 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 
 X 
 
 Oklahoma 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Oregon., 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Pennsylvania 
 
 
 
 
 
 
 X 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 X 
 
 Rhode Island 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 South Carolina 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 South Dakota 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Tennessee 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Texas 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Vermont....- 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Virginia 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 
 X 
 X 
 X 
 
 Washington 
 
 
 
 
 
 
 X 
 X 
 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 X 
 
 
 West Virginia 
 
 X 
 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 
 Wisconsin 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 Wyoming 
 
 X 
 
 
 
 \ 
 
 X 
 
 
 
 \ 
 
 X 
 
 
 
 
 X 
 
 
 X 
 
 
 Totals 
 
 36 
 
 
 '. 
 
 :;.-. 
 
 36 
 
 s 
 
 11 
 
 ;:5 
 
 11 
 
 
 
 
 36 
 
 s 
 
 U 
 
 12 
 
 S State 
 L Local 
 U Unit 
 M Multiple 
 
 O Partly State and Partly Local 
 
 X Type of Control Shown by Heading.
 
 80 
 
 Legislative Control of State Normal Schools 
 
 TABLE 3 
 
 METHODS OF CHOOSINO BOARD MEMBERS, NUMBER OF MEMBERS, AND THE LENGTH OF 
 TERM FOR THE DIFFERENT KINDS OF BOARDS 
 
 N stands for normal board. U stands for university board. F stands for financial board. stands 
 for all others. Unit boards listed in Table 7. 
 
 
 Methods of Choosing Members 
 
 Number of Members 
 
 Length of 
 Term 
 
 Appt. by 
 Governor 
 
 Appt. by 
 Other 
 Authority 
 
 Elected 
 by 
 People 
 
 Regular 
 
 Ex-Officio 
 
 Total 
 
 N 
 
 D 
 
 t 
 
 
 
 N 
 
 D 
 
 t 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 D 
 
 F 
 
 
 
 N 
 
 U 
 
 p 
 
 
 
 N 
 
 D 
 
 F 
 
 Q 
 
 N 
 
 U 
 
 1 
 
 
 
 Alabama 
 
 X 
 
 
 - 
 
 X 
 X 
 
 
 X 
 
 
 
 
 
 
 
 6 
 
 12 
 
 3 
 
 12 
 12 
 
 2 
 
 2 
 
 
 2 
 2 
 
 10 
 
 8 
 
 14 
 
 3 
 
 14 
 14 
 10 
 
 12 
 
 12 
 
 
 12 
 12 
 
 
 Arizona . 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 
 
 
 2 
 
 8 
 
 
 3 
 2 
 
 1 
 
 1 
 
 
 4 
 1 
 
 3 
 
 9 
 
 
 7 
 
 3 
 
 2 
 
 8 
 
 
 
 
 Arkansas 
 
 X 
 
 X 
 
 
 X 
 X 
 
 
 
 
 
 
 
 
 
 4 
 
 6 
 
 
 5 
 3 
 
 3 
 
 2 
 
 
 
 7 
 
 7 
 
 
 5 
 3 
 
 
 4 
 
 
 10 
 6 
 
 
 California 
 
 X 
 
 X 
 
 X 
 
 X 
 
 
 
 
 
 
 
 
 
 5 
 
 15 
 
 3 
 
 7 
 
 2 
 
 7 
 
 
 1 
 
 7 
 
 22 
 
 3 
 
 8 
 
 4 
 
 16 
 
 
 4 
 
 Colorado 
 
 X 
 
 
 
 
 
 
 
 X 
 
 
 X 
 
 
 
 6 
 
 6 
 
 
 8 
 
 1 
 
 
 
 1 
 
 7 
 
 6 
 
 
 
 
 
 
 6 
 
 
 4 
 
 
 Georgia.... 
 
 X 
 
 X 
 
 
 X 
 X 
 
 
 
 
 
 
 
 
 
 5 
 
 20 
 
 
 5 
 5 
 
 2 
 
 
 
 2 
 1 
 
 7 
 
 20 
 
 
 7 
 6 
 
 4 
 
 8 
 
 
 4 
 4 
 
 
 Illinois 
 
 X 
 
 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 8 
 
 9 
 
 
 3 
 
 2 
 
 
 
 
 11 
 
 9 
 
 
 3 
 
 6 
 
 6 
 
 
 
 
 Indiana 
 
 X 
 
 
 
 X 
 
 
 X 
 X 
 
 
 
 
 
 
 
 4 
 
 8 
 9 
 
 
 6 
 
 1 
 
 
 
 7 
 
 5 
 
 8 
 9 
 
 
 13 
 
 4 
 
 3 
 3 
 
 
 4 
 
 
 Iowa 
 
 
 
 
 X 
 X 
 
 
 
 
 
 
 
 
 
 
 
 
 2 
 
 
 
 
 3 
 4 
 
 
 
 
 3 
 
 6 
 
 
 
 
 4 
 
 
 Kansas 
 
 
 
 
 X 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 9 
 
 
 
 
 ',; 
 
 
 
 
 2
 
 Legislative Control of State Institutions 
 
 TABLE 3 Continued 
 
 81 
 
 
 Methods of Choosing Members 
 
 Number of Members 
 
 Length of 
 Term 
 
 N U F 
 
 Appt. by 
 Governor 
 
 Appt. by 
 Other 
 Authority 
 
 Elected 
 by 
 People 
 
 Regular 
 
 Ex-Officio 
 
 Total 
 
 N 
 
 r 
 
 F 
 
 o 
 
 N 
 
 u 
 
 F 
 
 
 
 N 
 
 
 
 F 
 
 () 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 Kentucky 
 
 X 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 
 
 4 
 
 12 
 
 
 2 
 
 1 
 
 a 
 
 
 1 
 
 6 
 
 I,') 
 
 
 :; 
 
 4 
 
 6 
 
 
 
 
 Louisiana 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 
 
 
 
 
 6 
 
 1-2 
 
 
 r, 
 
 :5 
 
 3 
 
 
 1 
 
 < 
 
 15 
 
 
 6 
 
 6 
 
 4 
 
 
 5 
 
 Maine 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 
 
 
 
 
 4 
 
 5 
 
 
 2 
 
 l 
 
 3 
 
 
 1 
 
 5 
 
 8 
 
 
 3 
 
 4 
 
 7 
 
 
 3 
 
 
 Michigan.- 
 
 
 
 
 
 
 
 
 
 X 
 
 X 
 
 
 X 
 
 3 
 
 8 
 
 
 6 
 
 1 
 
 
 
 
 4 
 
 8 
 
 
 6 
 
 6 
 
 8 
 
 
 6 
 
 Minnesota.- 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 
 
 
 
 
 s 
 
 9 
 
 
 c 
 
 
 
 1 
 
 3 
 
 
 
 9 
 
 12 
 
 
 
 .-. 
 
 j 
 
 4 
 
 6 
 
 
 5 
 
 Mississippi 
 
 X 
 
 X 
 
 
 X 
 
 X 
 
 
 
 
 X 
 
 
 
 
 
 s 
 
 8 
 
 
 4 
 
 c 
 8 
 
 2 
 
 2 
 
 
 1 
 1 
 
 10 
 
 10 
 
 
 * 
 
 a 
 
 
 
 6 
 
 
 
 
 4 
 
 
 Missouri 
 
 X 
 
 X 
 
 
 
 
 
 
 
 
 
 
 
 6 
 
 9 
 
 
 
 1 
 
 
 
 
 7 
 
 9 
 
 
 
 6 
 
 6 
 
 
 
 Montana 
 
 
 
 
 X 
 
 
 
 
 
 
 
 
 
 
 
 
 2 
 
 
 
 
 1 
 
 
 
 
 3 
 
 
 
 
 4 
 
 
 Nebraska...- 
 
 X 
 
 
 
 
 
 
 
 
 
 X 
 
 
 
 5 
 
 6 
 
 
 
 2 
 
 
 
 
 7 
 
 6 
 
 
 
 5 
 
 
 
 
 
 New Jersey 
 
 X 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 
 
 7 
 
 
 
 :< 
 
 1 
 
 
 
 4 
 
 s 
 
 
 
 7 
 
 s 
 
 2 
 
 
 
 New Mexico 
 
 X 
 
 X 
 
 
 X 
 X 
 X 
 
 
 
 
 
 
 
 
 
 5 
 
 5 
 
 
 i 
 - 
 
 - 
 
 c 
 
 
 
 
 2 
 
 :. 
 
 5 
 
 
 7 
 
 5 
 6 
 
 4 
 
 4 
 
 
 4 
 4 
 4 
 
 North Carolina. 
 
 
 
 
 X 
 X 
 X 
 
 X 
 
 X 
 
 
 
 
 
 
 
 ti 
 
 100 
 
 
 w 
 
 4 
 f 
 
 
 
 1 
 
 I 
 1 
 
 
 ti 
 
 
 100 
 
 4 
 
 5 
 7 
 
 8 
 
 8 
 
 
 4 
 6 
 
 4
 
 82 Legislative Control of State Normal Schools 
 
 TABLE 3 Continued 
 
 
 Methods of Choosing Members 
 
 Number of Members 
 
 Length of 
 Term 
 
 Appt. by 
 Governor 
 
 Appt. by 
 Other 
 Authority 
 
 Elected 
 by 
 People 
 
 Regular 
 
 Ex-Officio 
 
 Total 
 
 N 
 
 r 
 
 t 
 
 
 
 N 
 
 u 
 
 F 
 
 
 
 N 
 
 U 
 
 K 
 
 
 
 N 
 
 U 
 
 i' 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 Ohio 
 
 X 
 
 X 
 X 
 X 
 
 
 
 
 
 
 
 
 
 
 
 5 
 
 27 
 8 
 7 
 
 
 
 
 
 
 
 5 
 
 27 
 8 
 t 
 
 
 
 r, 
 
 9 
 
 7 
 
 
 
 
 Oklahoma 
 
 X 
 
 X 
 
 
 X 
 X 
 X 
 X 
 
 
 
 
 
 
 
 
 
 6 
 
 7 
 
 
 4 
 4 
 4 
 1 
 
 1 
 
 
 
 1 
 1 
 1 
 
 4 
 
 7 
 
 7 
 
 
 5 
 5 
 5 
 
 5 
 
 4 
 
 7 
 
 
 5 
 5 
 
 4 
 
 
 Oregon. 
 
 X 
 
 X 
 
 
 X 
 X 
 
 
 
 
 
 
 
 
 
 6 
 
 10 
 
 
 9 
 4 
 
 3 
 
 
 
 4 
 
 3 
 
 9 
 
 10 
 
 
 13 
 7 
 
 (i 
 
 
 
 
 Pennsylvania-- 
 
 
 
 
 X 
 
 X 
 
 
 
 
 
 
 
 
 9 
 
 
 
 6 
 
 
 
 
 1 
 
 
 
 
 
 7 
 
 3 
 
 
 
 6 
 
 Rhode Island.. - 
 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 
 
 
 3 
 
 
 6 
 
 
 2 
 
 
 2 
 
 
 5 
 
 
 s 
 
 
 
 
 6 
 
 South Carolina- 
 
 
 
 
 X 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 
 8 
 
 8 
 
 
 13 
 7 
 
 3 
 
 3 
 
 
 2 
 
 11 
 
 11 
 
 
 13 
 9 
 
 6 
 
 6 
 
 
 4 
 
 4 
 
 Tennessee .. 
 
 X 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 
 
 9 
 
 10 
 
 
 
 
 1 
 
 4 
 
 
 10 
 
 
 14 
 
 
 5 
 
 6 
 
 12 
 
 
 
 
 Texas 
 
 X 
 
 X 
 
 X 
 
 X 
 X 
 X 
 
 
 
 
 
 
 
 
 
 5 
 
 9 
 
 3 
 
 6 
 8 
 7 
 
 1 
 
 
 
 1 
 
 2 
 
 6 
 
 9 
 
 3 
 
 6 
 9 
 9 
 
 6 
 
 
 6 
 
 8 
 2 
 
 
 Virginia 
 
 X 
 
 X 
 
 
 X 
 
 
 
 
 X 
 
 
 
 
 
 12 
 
 9 
 
 
 10 
 3 
 
 2 
 
 1 
 
 
 1 
 
 3 
 
 14 
 
 10 
 
 
 11 
 6 
 
 4 
 
 
 
 4 
 4 
 
 
 Washington. 
 
 X 
 
 X 
 
 
 X 
 X 
 
 
 
 
 
 
 
 
 
 3 
 
 7 
 
 
 3 
 5 
 
 
 
 
 3 
 
 3 
 
 7 
 
 
 6 
 5 
 
 6 
 
 
 6 
 
 2 
 6
 
 Legislative Control of State Institutions 
 
 TABLE 3 Continued. 
 
 83 
 
 
 Methods of Choosing Members 
 
 Number of Members 
 
 Length of 
 Term 
 
 Appt. by 
 Governor 
 
 Appt. by 
 Other 
 Authority 
 
 Elected 
 by 
 People 
 
 Regular 
 
 Ex-Officio 
 
 Total 
 
 N 
 
 u 
 
 F: 
 
 o 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 U 
 
 J 
 
 
 
 N 
 
 U 
 
 F 
 
 
 
 N 
 
 I 
 
 1 
 
 
 
 West Virginia.... 
 
 
 
 X 
 
 
 
 
 
 
 
 
 
 
 
 
 3 
 
 
 
 
 
 
 
 
 3 
 
 
 
 
 
 8 
 
 Wisconsin 
 
 X 
 
 X 
 
 
 
 
 
 
 X 
 
 
 
 
 
 10 
 
 
 
 2 
 
 1 
 
 2 
 
 
 3 
 
 11 
 
 
 
 r, 
 
 .') 
 
 8 
 
 
 2 
 
 
 Wyoming 
 
 X 
 
 X 
 
 
 
 
 
 
 
 
 
 
 
 6 
 
 9 
 
 
 
 1 
 
 2 
 
 
 
 7 
 
 11 
 
 
 
 8 
 
 G 
 
 
 
 Total 
 
 26 
 
 24 
 
 4 
 
 39 
 
 3 
 
 5 
 
 
 
 10 
 
 1 
 
 4 
 
 
 
 1 
 
 6 
 
 12 
 
 3 
 
 5.2 
 
 1.6 
 
 2.6 
 
 
 
 7.1 
 
 7.2 
 
 18 
 
 3 
 
 fl.t 
 
 5.5 
 
 6.8 
 
 6 
 
 4.9 
 
 TABLE 4 
 
 SHOWING FKEQUENCY DISTRIBUTION OF REGULAR, EX-OFFICIO, AND TOTAL NUMBER OF MEMBERS 
 OF NORMAL SCHOOL BOARDS; ALSO THE LENGTH OF TERM 
 
 Regular 
 Frequency 
 1 
 
 No. 
 
 2 
 
 Ex-Officio 
 Frequency 
 14. 
 
 No. 
 1 
 
 Total 
 Frequency 
 2 
 
 No. 
 3 
 
 Term 
 Frequency^ 
 1 
 
 Yeara 
 2 
 
 2 
 
 3 
 
 7 
 
 2 
 
 2.. 
 
 .... 4 
 
 1 .. 
 
 3 
 
 4 
 
 4 
 
 4. 
 
 3 
 
 5 
 
 5 
 
 11 
 
 .. 4 
 
 6 
 
 5 
 
 
 
 2 
 
 ... 6 
 
 4 
 
 .. 5 
 
 8 
 
 6 
 
 
 
 8. .. 
 
 7 
 
 13 
 
 6 
 
 1 
 
 7 
 
 
 
 2 
 
 8 
 
 1 
 
 7 
 
 3 
 
 8 
 
 
 
 3 . . . 
 
 9 
 
 1 
 
 8 
 
 3 _ 
 
 9 
 
 
 
 1 
 
 10 
 
 1 
 
 12 
 
 1 _. 
 
 10 
 
 
 
 3 
 
 ...... 11 
 
 
 
 1 , 
 
 12 
 
 
 
 1 . _ 
 
 i 12 
 
 
 
 
 
 
 
 1_. 
 
 ....14 
 

 
 84 Legislative Control of State Normal Schools 
 
 TABLE 5 
 
 SHOWING FREQUENCY DISTRIBUTION OF REGULAR, EX-OFFICIO, AND TOTAL 
 
 NUMBER OF MEMBERS OF COLLEGE AND UNIVERSITY BOARDS; 
 
 ALSO THE LENGTH OF TERM 
 
 Regular 
 Frequency 
 1 _ .. 
 
 No. 
 3 
 
 Ex-Officio 
 Frequency 
 2 
 
 No. 
 1 
 
 Total 
 
 Frequency 
 1 
 
 No. 
 ....5 
 
 Term 
 Frequency 
 1 
 
 No. 
 
 ?, 
 
 3 
 
 5 
 
 6 
 
 2 
 
 2 
 
 ....6 
 
 2 
 
 3 
 
 2 
 
 6 
 
 5 
 
 3 
 
 4 
 
 ....7 
 
 2 
 
 4 
 
 3 
 
 7 
 
 1 
 
 4 
 
 4 
 
 ....8 
 
 10 
 
 6 
 
 6 
 
 g 
 
 1 
 
 7 
 
 5 
 
 ....9 
 
 3 
 
 7 
 
 6 
 
 9 
 
 
 
 3 
 
 10 
 
 4 
 
 8 
 
 2 
 
 10 
 
 
 
 2 
 
 ..11 
 
 1 
 
 q 
 
 3 
 
 12 
 
 
 
 2 
 
 14 
 
 2 
 
 ifl 
 
 1 
 
 15 
 
 
 
 1 
 
 ..15 
 
 1 
 
 16 
 
 1 
 
 20 
 
 
 
 1 
 
 20 
 
 
 
 1 
 
 27 
 
 
 
 1 
 
 ..22 
 
 
 
 1 
 
 100 
 
 
 
 1 
 
 27 
 
 
 
 
 
 
 
 1.... 
 
 100 
 
 
 
 NOTE: The four financial boards found in this study have three mem- 
 bers each; no ex-officio members; the members serve for terms of six years. 
 
 TABLE 6 
 
 SHOWING FREQUENCY DISTRIBUTION OF REGULAR, EX-OFFICIO, AND TOTAL 
 NUMBER OF MEMBERS OF BOARDS OTHER THAN NORMAL SCHOOL, COL- 
 LEGE AND UNIVERSITY BOARDS; ALSO THE LENGTH OF TERM 
 
 Eegular 
 Frequency 
 1 
 
 No. 
 ....1 
 
 Ex-Officio 
 Frequency No. 
 16 1 
 
 Total 
 
 Frequency 
 9 
 
 No. 
 3 
 
 Term 
 Frequency 
 4 
 
 No. 
 
 9, 
 
 6 
 
 2 
 
 7 2 
 
 1 
 
 4 
 
 1 
 
 T 
 
 8 
 
 ....3 
 
 5 3 
 
 12 
 
 ...5 
 
 18 
 
 4 
 
 6 
 
 4 
 
 5 4 
 
 8 
 
 6 
 
 5 
 
 5 
 
 10 
 
 5 
 
 1 7 
 
 6 
 
 7 
 
 5 
 
 6 
 
 6 
 
 6 
 
 1 9 
 
 2 
 
 ....3 
 
 1 
 
 8 
 
 3 
 
 ....7 
 
 2 10 
 
 6 
 
 ....9 
 
 1 
 
 10 
 
 3 
 
 8 
 
 
 1 
 
 ..10 
 
 2 
 
 12 
 
 1.. 
 
 .....9 
 
 
 1 
 
 ..11 
 
 
 
 1 
 
 ...10 
 
 
 3 
 
 ..13 
 
 
 
 2 
 
 ...12 
 
 
 2.... 
 
 -14 
 

 
 Legislative Control of State Institutions 
 
 TABLE 7 
 
 85 
 
 SHOWING METHODS OF CHOOSING BOARD MEMBERS, NUMBER OF MEMBERS, 
 
 AND LENGTH OF TERM IN STATES WHERE THE UNIT TYPE OF 
 
 CONTROL FOR TEACHER TRAINING AGENCIES PREVAILS 
 
 
 Method of Choosing 
 Members 
 
 Number ol Members 
 
 Length 
 of 
 Term 
 
 Appt. 
 
 r T 
 Gov. 
 
 Appt. 
 by 
 
 Other 
 Auth'y 
 
 Elect. 
 
 Regular 
 
 Ex-oflicio 
 
 Total 
 
 Connecticut 
 
 x 
 
 X 
 X 
 X 
 X 
 X 
 X 
 X 
 
 X 
 X 
 X 
 X 
 
 X 
 
 
 9 
 
 8 
 9 
 3 
 7 
 6 
 8 
 5 
 12 
 3 
 5 
 5 
 6 
 
 1 
 1 
 1 
 
 3 
 1 
 
 2 
 1 
 
 9 
 9 
 9 
 4 
 7 
 7 
 11 
 6 
 12 
 5 
 5 
 5 
 7 
 
 6 
 5 
 6 
 4 
 
 7 
 3 
 4 
 5 
 12 
 6 
 6 
 5 
 6 
 
 Idaho 
 
 Iowa 
 
 Kansas , 
 
 Maryland 
 
 Massachusetts 
 
 Montana 
 
 New Hampshire 
 
 New York 
 
 North Dakota 
 
 South Dakota 
 
 Vermont 
 
 West Virginia 
 
 
 Total 
 
 12 
 
 1 
 
 
 
 Median 1 Median 
 6 I 1 
 
 Median 
 
 7 
 
 Median 
 6 
 
 
 TABLE 8 
 
 SHOWING FREQUENCY DISTRIBUTION OF NUMBER OF MEMBERS, AND LENGTH 
 
 OF TERM IN STATES WHERE THE UNIT TYPE OF 
 
 CONTROL PREVAILS 
 
 Eegular 
 Frequency No. 
 
 Ex-Offido 
 Frequency No. 
 
 3 
 
 .....5 
 ....6 
 
 1 - 7 
 
 2 8 
 
 2 9 
 
 1 12 
 
 Total j 
 Frequency 
 1 
 
 Vwmber 
 No. 
 4 
 
 3 
 
 ... . 5 
 
 1 
 
 6 
 
 3 
 
 7 
 
 3 .. . 
 
 9 
 
 1 
 
 11 
 
 1.. 
 
 ....12 
 
 Term 
 Frequency No.
 
 CHAPTER II 
 
 SIGNIFICANCE OF DIFFERENT TYPES OF BOARDS 
 OF CONTROL 
 
 By reference to Table 2, Section C, Chapter I, it will be seen 
 that boards for the general control of state educational institu- 
 tions, for the control of all state teacher training agencies, and 
 for the control of special teacher training agencies, may be clas- 
 sified as state or local, unit or multiple boards. In a few states 
 both state and local boards are found, that is, state boards for 
 some institutions and local boards for others. For the general 
 control of state institutions this is true in Arizona, California, 
 Georgia, Missouri, New Mexico, North Carolina, Pennsylvania 
 and Washington. The other thirty-six states have typical state 
 boards for the control of their state educational institutions. 
 For the control of state normal schools the same thirty-six states 
 provide some form of state board of control while the eight men- 
 tioned above have local boards. Thirty-two states have unit 
 boards for the control of state normal schools while twelve have 
 multiple boards of one form or another. In this connection it 
 must be noted that only thirteen states provide a unit board for 
 the control of all state teacher training agencies, while thirty- 
 one states have multiple boards for such institutions. A list of 
 the states having unit boards will be found in Table 7, page 85. 
 
 THE FUNCTIONS OF A BOARD 
 
 Before attempting to answer our first question, which has al- 
 ready been stated, What is the best type of board a state can 
 have for its normal schools and other teacher training agencies ? 
 it is necessary to review the best authoritative opinions and 
 studies on the duties of boards of control. The number of such 
 opinions and studies relating to boards whose particular func- 
 tions are to control teacher-training institutions is limited, yet 
 such as relate to similar boards are significant.
 
 Significance of Different Types of Boards 87 
 
 Cubberley says: 
 
 "A school board is elected primarily as a board of school control, to 
 determine school policies, select experts, approve new undertakings, 
 and determine expenditures. . . . Freed from the details of school 
 organization and administration, and from the pulls and influences 
 which surround detailed work on many of the larger features of the 
 administrative problem, the board is now free to devote its energies 
 to the problem of its work as a board for school control. These relate 
 to the selection, from time to time, of its expert advisers .... the 
 selection of school sites, always with the larger future needs in mind; 
 the determination of the annual budget and the tax levy; the con- 
 sideration of the expansion of the school system; the prevention of 
 legislation by the city or by the legislature which is against the best 
 interests of the schools under their control; and the proper presenta- 
 tion to the people whom they represent, of the work and needs of the 
 schools and the policies of the school department." 1 
 
 One of the most significant studies relating to the duties of a 
 city school board was made by W. W. Theisen, who, with the as- 
 sistance of eighty students in educational administration and 
 other schoolmen, prepared a list of nineteen duties which 
 boards of education are supposed to perform. This list was 
 submitted to and ranked by 531 judges. The first eleven duties 
 are given here in order of their importance: 
 
 1. Select the chief executive officer and support him in the dis- 
 charge of his duties. 
 
 2. Pass upon the annual budget for maintenance prepared for the 
 chief executive and his assistance ("budget including sources 
 and amount of revenue available as well as expenditures"). 
 
 3. Debate and pass upon recommendation of chief executive for ad- 
 ditional capital outlays building sites, improvements, and deter- 
 mine the means of financing such outlays, e. g., bonds, loans. 
 
 4. Advise with the chief executive, affording a group judgment, on 
 his recommendations for extensions or readjustments of the 
 scope of educational activities. 
 
 5. Appoint upon nomination and recommendation of the chief 
 executive the teachers, principals, and supervisors. 
 
 6. Determine, after consultation and discussion with the chief ex- 
 ecutive, the schedule of salaries. 
 
 7. Require and consider report of the business transacted or pend- 
 ing and of the financial status of the system. 
 
 'Cubberley, E. P., Public School Administration, pp. 118-19.
 
 88 Legislative Control of State Normal Schools 
 
 8. Require and discuss the report of the chief executive concerning 
 progress of the schools in terms of achievements of the pupils, 
 teachers, supervisors. 
 
 9. Adopt, upon consultation with the chief executive, a set of by- 
 laws or rules for the government of the school system, i.e., desig- 
 nate authority of executive and administrative officers, and 
 duties to be performed by the board or its committees. 
 
 10. Pass upon architect's plans, approved by the chief executive and 
 his assistants, for buildings that have been authorized. 
 
 11. Represent needs of the schools before city authorities or the 
 legislature. 
 
 Theisen further states that "When the judgments of business 
 men and board members are considered separately, though in- 
 sufficient in number to warrant positive conclusions, we find lit- 
 tle change from the order above in the relative rank of the dif- 
 ferent duties." 2 
 
 In a study based upon an examination of the tax-supported 
 normal schools in the state of Missouri, we find this statement: 
 "The all-important business of a board is to keep a first-class 
 executive at the head, and then the less government the better. ' >s 
 In the same publication there is a quotation from a former 
 board member who says: "It is also its [the board's] duty to 
 lead the community to recognize what is best in education. As 
 the board represents a culture higher than the general culture 
 of the community, and as its closer relations with the school and 
 supervising officers give it a wider and better view than the 
 view of the community, the work of the board becomes directly 
 educative, and its duty, manifestly, is to inform and direct the 
 community." 4 The report further affirms that "If these prin- 
 ciples hold of a municipal school system, they should be doubly 
 sacred in a higher professional institution." 5 
 
 Applying these principles to state-controlled teacher training 
 agencies it would follow that the main duties of the board, in 
 addition to selecting the chief executive, are to secure and make 
 available the funds for running the institution; to educate the 
 community (in the large) to the eager support of the institu- 
 
 "Theisen, W. W., The City Superintendent and the Board of Education, 
 p. 31. 
 
 'Bulletin No. 14, p. 46, The Carnegie Foundation for the Advancement of 
 Teaching. 'Ibid. *Ibid.
 
 Significance of Different Types of Boards 89 
 
 tion ; to assist those closely connected with the instructional pro- 
 cesses in redefining the purposes of the institution in the light 
 of the state- wide experience they are able to bring; to provide 
 ways and means of handling in a most economical and effective 
 manner the details of their own office and the office of the chief 
 executive. Further reasons for the acceptance of these prin- 
 ciples will be seen in the presentation of the advantages and dis- 
 advantages of the different types of boards of control. 
 
 In order to show clearly that these principles are not recog- 
 nized in the provisions for the control of teacher training agen- 
 cies made by legislative enactment, we shall present types of 
 such provisions, from two states, and excerpts from others. 
 
 The Arizona legislature makes the following provisions for the 
 duties of the board controlling its normal schools: 
 
 "Said boards shall have power to appoint a principal and an as- 
 sistant to take charge of their respective schools, and such other 
 teachers and officers as may be required in such schools, and fix the 
 salary of each, and prescribe their several duties. They shall also 
 have power to remove either the principal, assistant, or teachers, and 
 appoint others in their stead. They shall prescribe the various books 
 to be used in said schools and make all regulations and by-laws neces- 
 sary for the good government and management of the same. 
 
 "The said boards shall have power to ordain such rules, regulations, 
 and requirements, for admission of pupils to their respective schools 
 as they shall deem necessary and proper. They may in their discre- 
 tion require any applicant for admission to sign and file with the 
 board governing the institution to which admittance is sought a 
 signed declaration of intention to follow the business of teaching 
 schools in the state. The said boards shall have power to prescribe 
 any tuition, fees and charges, that may be necessary or expedient in 
 thier respective schools. 
 
 "The course of study leading to graduation from the regular teachers 
 course of the Arizona normal schools shall be uniform in the amount 
 
 of work, and shall be prescribed by the boards of education 
 
 Every such training school shall at all times be under the supervision, 
 control and management of the governing board .... All teachers 
 employed to teach in such training schools .... shall be employed 
 
 by the governing board and the trustees of the school district 
 
 acting jointly. The governing board and the trustees .... shall 
 jointly prescribe from time to time such rules and regulations as 
 they may deem proper governing the admission and attendance at such 
 training school." 8 
 
 Vermont provides as follows: 
 
 "The State Board of Education shall have the care and management 
 of the state normal schools and shall exercise such powers as are 
 
 'Arizona Civil Code, 1913, Chap. IV, Art. 4513 seq.
 
 90 Legislative Control of State Normal Schools 
 
 necessary for the proper conduct of such schools and shall make such 
 regulations in respect to such institutions as the interests of the state 
 demand. Said board shall, through the commissioner of education, pre- 
 pare courses of study to be given in such schools and may revise the 
 same when necessary. Said board shall determine the conditions 
 for admission to and graduation from such schools, shall select and 
 employ all such teachers for such schools and may dismiss them when 
 the interests of the school requires. All moneys received from 
 tuitions or otherwise in connection with such schools shall be turned 
 into the treasury by said board and same may be used by said board 
 in the care and management of such schools. Said board shall, in 
 its report to the general assembly, state the condition and progress of 
 such schools and the moneys received and expended for the same."* 
 
 A study of the provisions made by each state shows these to 
 be common expressions: have full control and management of 
 
 normal schools may employ secretary .... maintain 
 
 practice school determine salaries receive and 
 
 distribute funds .... make biennial report .... secure 
 sites .... provide buildings .... course of study .... 
 elect principal and teachers .... fix admission and graduation 
 requirements .... visit and inspect the school, etc. As will 
 be seen in Table 9 all such provisions have been listed and 
 grouped under four headings in an attempt to find 
 out the legal duties of these boards. The groupings have 
 been made more or less arbitrarily, yet they will show 
 clearly that the principles now recognized as governing the 
 duties of a board are not contemplated in these legislative pro- 
 visions. From Table 9 it may be found that, according to oar 
 classification, 3.4 per cent of the board's duties relate to legis- 
 lative action, 56.7 per cent to executive work, 16.7 to profes- 
 sional work and 23.2 to clerical work. It will be admitted that 
 some of the duties listed as executive should be performed 
 by the board. It will be necessary for the board to elect 
 a president and fix salaries; instead of the board electing the 
 teachers it would be more economical to confirm the selection 
 made by the president. Those duties listed as professional 
 evidently belong to educational experts; those listed as cler- 
 ical should not consume the board's time, as we know they do, 
 but should be left to its paid office force. It can readily be seen 
 
 ''Vermont Civil Code, 1917, Chap. 71, Sec. 1399.
 
 Significance of Different Type of Boards 
 
 91 
 
 TABLE 9 
 DUTIES OF NORMAL SCHOOL BOARDS AS SHOWN BY LEGISLATIVE PROVISIONS 
 
 ! Legislative 
 
 Clerical 
 
 Connecticut 
 
 Georgia-- 
 Idaho 
 
 Indiana- 
 Iowa 
 
 Kansas... 
 
 Kentucky 
 Louisi 
 
 Maine 
 
 Maryland 
 
 Massachusetts 
 
 Michigan 
 
 Minnesota. 
 
 Mississippi 
 
 Missouri 
 
 Minnesota... 
 Nebraska 
 
 New Hampshire 
 New Jersey 
 
 New Mexico 
 
 New York 
 
 No. Carolina. 
 
 No. Dakota. 
 
 Ohio 
 
 Oklahoma 
 
 Oregon 
 
 Pennsylvania 
 
 South Carolina. 
 
 South Dakota 
 
 Tennessee 
 
 Texas 
 
 Vermont. |Z 
 
 Virginia 
 
 Washington 
 
 West Virginia. ! 
 
 Wisconsin
 
 92 Legislative Control of State Normal Schools 
 
 that the first group of duties should receive much more attention 
 by the board and the others considerably less. This important 
 principle is not recognized even in the latest enactments relating 
 to the state educational boards. In February, 1919, one of the 
 states consolidated some of its boards by the following provi- 
 sions: " board shall have general control and manage- 
 ment of (names of all the state educational institutions) .... 
 shall exercise such authority and perform such duties as may 
 have been delegated heretofore to the state board of regents, to 
 the state board of education as now constituted, to the state 
 school book commission, and to the state vocational board." 8 
 By way of explanation it should be said that in this particular 
 state the state board of education has performed numerous de- 
 tailed duties relating to the certification of teachers; it is un- 
 necessary to state that a state text-book commission has details 
 to perform. Now, if these numerous duties fall to the state 
 board of education in addition to others, and the board consid- 
 ers it its duty to perform them rather than to employ experts, it 
 is not surprising that it finds little time for large constructive 
 educational policies. 
 
 TYPES OF BOARDS 
 
 Local vs. State Boards. The history of the different prevailing 
 types of boards follows in the main the general develop- 
 ment of educational administration. At first the control was 
 well centralized, as in West Virginia and Missouri; later it 
 became extremely local, and now it is slowly swinging 
 back towards a highly centralized type. The local boards 
 now in existence vary from those whose duties are merely 
 nominal to those with complete control of all educational and 
 financial matters. The main advantage claimed for the local 
 type of control is that its members, by assuming the responsibil- 
 ity for the institution, become more interested in its prog- 
 ress and transmit this interest to their fellow-citizens; thus the 
 entire community becomes a unit in the support of the local in- 
 stitution. The second advantage urged is that the board from 
 its community point of view may sense needs which the presi- 
 
 'Code of West Virginia, Chap. 45, See. 7.
 
 Significance of Different Types of Boards 93 
 
 dent or a state board cannot know. Against the latter conten- 
 tion it may be said that the community's view is narrow and 
 usually this narrow view handicaps rather than promotes real 
 efficiency. When the state normal schools of West Virginia 
 were under the control of local boards the entire faculty of one 
 school was dismissed because of local pressure. This was 
 proved when the state board which then had the power to re- 
 view the action of the local board simply transferred the facult;; 
 to another institution and sent that institution's faculty to tht 
 former one. Even if the advantage of greater interest does not 
 radiate from the president and his faculty, it can be secured 
 through a local committee made up of representative citizens 
 men and women who are merely advisory to a state board. 
 
 The chief disadvantage of a local board for the control of any 
 teacher training agency is that the board, in composition, lacks 
 vision; hence, all questions are almost certain to be considered 
 from the sectional point of view. It is possible, too, that the pur- 
 pose of the school, as has often happened, will be subordinated 
 to mere enrollment, which, in turn will secure a larger appro- 
 priation from the state and larger financial benefit to the local 
 community; thus a large material plant is built up, perhaps at 
 the expense of some other institution the function of which is 
 identical and the needs of which are greater. Second, the local 
 board may coincide with the president and work in harmony 
 with his plans or may work contrary to his policies whether they 
 be right or wrong; at any rate, such a board cannot inspire the 
 president to do his best constructive work for the school. Third, 
 rivalry, with all its attendant evils too well known to consume 
 time here, is sure to be present where the local type of control 
 prevails. 
 
 The advantages of a state board of education inhere in the 
 fact that the members may be drawn from the different parts of 
 the state and thereby bring a wider experience than is likely to 
 be found in any local board. Second, in approving courses of 
 study, appointing presidents and faculties, and determining their 
 tenure, local bias will be eliminated ; this fact alone means much 
 to the efficiency of any educational institution. Third, a state 
 board of education will cooperate more readily with other state
 
 94 Legislative Control of State Normal Schools 
 
 boards in working out state-wide programs. This cooperation is 
 especially necessary in the training of teachers. These advan- 
 tages, together with the inherent disadvantages of a local board, 
 indicate rather clearly that some form of state board is best for 
 normal schools. 
 
 Multiple vs. Unit Boards. A summary of the data found in 
 Chapter I, Section C, reveals the fact that out of forty-four 
 states only nine have unit boards for the management and 
 control of all state institutions ; twelve have unit boards for all 
 state teacher training institutions, while thirty-two have such 
 boards for state normal schools. Since the training of teachers 
 for a state is a " homogeneous undertaking, ' ' 9 or at least should 
 be, it seems reasonable that one board should control and unify 
 this state-wide function. Where multiple boards exist for the 
 control of different institutions with like functions the same 
 disadvantages inhere as in the local boards, except in a some- 
 what less acute form. Each desires to obtain an appropriation 
 which will make a creditable showing for its particular institu- 
 tion, and expenditures are often made regardless of the function 
 of the institution in the system as a whole. The rivalry among 
 multiple boards controlling institutions, the functions of which 
 are alike, may be equal to the rivalry among local boards. It 
 reminds one of children who want the same toy at the same 
 time, or the same slice of cake when there are others just as 
 large and as good. Departments of education within universi- 
 ties have prospered in training secondary teachers; normal 
 schools oftentimes have tried to build up their attendance by 
 imitating the departments, regardless of their immediate op- 
 portunity to serve the state well in the training of elementary 
 teachers. As a result there has been an uneconomical expendi- 
 ture of money and time. 
 
 It is not urged here that the field of the normal school be 
 limited or that a monopoly be given to the university in 
 the training of secondary teachers, but rather that there 
 should be a central authority to assist in defining and 
 
 Bulletin No. 14, The Carnegie Foundation for the Advancement of 
 Teaching, p. 63.
 
 Significance of Different Types of Boards 95 
 
 adjusting the aims of the different teacher training in- 
 stitutions. In addition to the aims and programs there are 
 certain details, such as determining entrance requirements, grad- 
 uation requirements, exchange of credits, credit for extension 
 work, latitude to the mature student, and variation in the cur- 
 riculum to suit local needs, which only a unit board can manage 
 intelligently. Out of these considerations it seems reasonable to 
 contend that all state teacher training agencies should be placed 
 under one board. This obviously leads to the conclusion that 
 all state institutions, particularly those which have anything at 
 all to do with education, should be placed under this same unit 
 board. It is beyond the limits of this monograph to present data 
 or further argument to substantiate this position. Concerning 
 the teacher training high schools let it suffice to say that the state 
 should, as it is doing in many places, exercise strong supervi- 
 sory control as long as the present teacher shortage makes the 
 existence of such training necessary. Coffman says: "The 
 system was established in the first place because the central ed- 
 ucational machinery and the state normal schools were not meet- 
 ing rural needs, and it has grown because it does supply an 
 immediate need in an immediate way. At the time when it be- 
 came an institution the people of the state were not used to 
 acting in unison on such questions; without doubt, were the 
 problem to be solved anew with the educational machinery now 
 organized in the state, another solution more efficient and more 
 economical would be found." 10 
 
 Other Types of Multiple Boards. Further Disadvantages. 
 Multiple boards may be further classified as local-multiple 
 boards such as now exist in Arizona, California, Georgia, Mis- 
 souri, New Mexico ; or as state dual boards such as are found in 
 West Virginia and other states having two boards with different 
 functions in control of the same institution. The latter type 
 will be discussed here, since it involves a form of multiple con- 
 trol now receiving attention and likely to become prevalent 
 because of its possibilities for scientific management. 
 
 In West Virginia this dual-multiple control is felt within the 
 
 "Coffman, L. D., Teacher Training Departments, Minnesota High Schools, 
 p. 79.
 
 96 Legislative Control of State Normal Schools 
 
 state educational institutions. According to the new code of 
 1919 the State Board of Education consists "of seven members, 
 one of whom shall be the state superintendent of schools ex- 
 officio, and the other six members shall be appointed by the 
 governor, as herein provided from the two dominant political 
 parties .... shall have the general control and management 
 of the educational affairs of the West Virginia University, the 
 state normal schools, the West Virginia Trades School, the West 
 Virginia Vocational School .... and of any other state edu- 
 cational institution which may hereafter be created by law." 11 
 "The state board of control .... shall consist of three mem- 
 bers, not more than two of whom at the time of appointment 
 shall belong to the same political party, to be appointed by the 
 governor and with the advice of the state senate . . . shall have 
 charge and control of the financial and business affairs of the 
 West Virginia University .... the state normal school and its 
 branches .... and have such other control and management 
 of said institutions as are in this act provided. ' 512 
 
 These statutory provisions create a peculiar relationship be- 
 tween the two boards in the management and control of the same 
 institutions. The State Board of Education may employ presi- 
 dents or teachers in any institution, but the salaries cannot be 
 paid unless approved by the State Board of Control. The for- 
 mer may employ a teacher of agriculture or home economics, 
 but the latter may say that there are no funds for equipping 
 the laboratories. Expensive apparatus, including scientific 
 books, and even magazines may be needed for a certain institu- 
 tion, but funds may be lacking according to the interpretation of 
 the needs of the institution by the State Board of Control. In 
 other words, efficiency and economy, in the eyes of one board, 
 may mean a little greater expenditure of funds, while in the 
 eyes of the other it must always mean less expenditure of the 
 available funds. According to this dual type of control it is 
 possible for these two extreme ideas to be found in each board. 
 
 Legally, then, the State Board of Education becomes little more 
 than a sub-committee of the State Board of Control. In actual 
 practice, however, it must be said that they have worked har- 
 
 "West Virginia Code, Chap. 45, Sec. 4. "Ibid., Chap. 15, Sec. 1.
 
 Significance of Different Types of Boards 97 
 
 moniously in the state since their creation in 1909. The Board 
 of Control in its biennial report of 1912 says, "We are glad to 
 state that this Board [the Board of Regents, now Board of Edu- 
 cation] has given us generous cooperation in our work for the 
 educational institutions, and the relations at all times between 
 the two Boards have been harmonious and helpful." 13 It is 
 generally acknowledged that harmony has been brought about, 
 not by any virtue inherent in the type of control, but because 
 the members of both boards have been broad, liberal-minded 
 men, and, as has been said of the system, it has worked because 
 those identified with it have determined to make it work. This 
 dual-multiple type control is a most unfortunate one, the evils of 
 which future legislation cannot afford to overlook. It may be 
 that these two boards will work in harmony in this state for 
 years, but the future development of state institutions is a mat- 
 ter of too great importance to leave such to chance. This dan- 
 ger must be present wherever there are two parallel boards 
 whose powers and duties overlap, or more especially where one 
 has control of the financial affairs and the other of the educa- 
 tional. Wherever anything savoring of so-called scientific 
 management is introduced it should be safeguarded so that the 
 financial interests do not obscure the educational. The solution is 
 self-evident ; namely, there should be one board with the general 
 oversight of the powers and duties now lodged in the two 
 boards. The details should then be placed in the hands of ex- 
 perts, and there should be one state board for all educational in- 
 stitutions. The principle advocated here is referred to in the 
 report of the survey of the Binghamton school system which 
 says : ' ' The board of education has no control over budget esti- 
 mates or disbursement of funds. The lack of financial control 
 has often meant also lack of power to fix educational policies." 14 
 The disadvantages naturally inherent in the various types of 
 multiple boards and in local boards can be overcome only by a 
 unit board for at least all institutions which have to do with the 
 unified problem of training teachers. This unit board should 
 have the full management and control of the normal schools, the 
 
 "Biennial Report, 1912, West Virginia State Board of Control. 
 U A Report of the Survey of the Binghamton School System, p. 36.
 
 98 Legislative Control of State Normal Schools 
 
 schools of education in state colleges and universities, and in- 
 cidentally we suggest the supervision of all such work in the 
 private and denominational colleges, the city training schools, 
 and the high schools. The chief reasons for the unit board may 
 be summarized by saying that the problem of training teachers 
 for the state is a unit problem ; the present division of the prob- 
 lem among different institutions differently controlled is his- 
 toric and not at all inherent in the nature of teacher training 
 itself. This essential integration can be maintained only by a 
 single board whose vision is state-wide and whose purpose in 
 this respect is single, namely, to supply the state with an ade- 
 quate supply of trained teachers. 
 
 The disadvantages of such a type of control should be clear : 
 
 First, the specific work of each institution would be outlined 
 with reference to the one great problem. Each school would then 
 feel that its assigned work was important, that it was rendering 
 a great service to the state and that undesirable competition 
 with other similar schools was unnecessary nor necessary to main- 
 tain courses in fields where there was not sufficient demand for 
 the returns to justify the expenditure. The board would as- 
 sume responsibility for the results of each school in comparison 
 with the other schools. 
 
 Second, entrance credits, graduation requirements, flexibility 
 for mature students, extension credit and courses, can be adopt- 
 ed by the board through its experts. 
 
 Third, local interests in all phases would become subordinated 
 to the real purpose of the school. Local pride would find expres- 
 sion in a desire to furnish the greatest possible number of trained 
 teachers to the state rather than to attract many students to 
 the local town in order that local merchants, boarding-house 
 keepers, and owners of rooms may increase their incomes. 
 
 Fourth, the unit board would give an opportunity to employ 
 expert service in all phases of its work. It can employ an expert 
 business manager and equip his office. It can employ the chief 
 executive of the institution and give him sufficient office help, 
 so that he may contribute his services to the instructional 
 side of the school. Under the multiple or more especially the
 
 Significance of Different Types of Boards 99 
 
 dual type of control for the same institution the chief execu- 
 tive is between two fires. 
 
 Fifth, the unit board would assume the responsibility of all ap- 
 propriations and distribute the same among the various institu- 
 tions under its control according to their several purposes and 
 needs. Just here a plausible argument can be found for extend- 
 ing this type of control to all state institutions. Log-rolling in 
 legislatures, which leads to all forms of bad ethics and uneco- 
 nomical effort, would be stopped. 
 
 Sixth, the plan would give an opportunity for the classifica- 
 tion and explanation of receipts and expenditures. In the Ap- 
 pendix of this study will be found some of the advantages of 
 such a classification. 
 
 Seventh, the presence of ex-officio members on many boards 
 indicates that there is a recognized need for unity of control. 
 This need is further exemplified in the Joint Board of Higher 
 Curricula of the state of Washington, in the Council of Educa- 
 tion of Alabama, and in other similar boards. The functions of 
 the former ' ' are threefold : 1. To consider matters of efficiency 
 and economy in the administration of the five institutions of 
 higher learning supported by the state, and to make recom- 
 mendations to their controlling boards. 2. To approve or dis- 
 approve of the introduction of new major professional or ap- 
 plied science lines in the various institutions. 3. To survey 
 the several institutions, investigating the enrollment, attend- 
 ance and cost of instruction, and to report biennially to the gov- 
 ernor. ' '" 
 
 The Alabama Council of Education was created at the sug- 
 gestion of the survey commission which said it "should be or- 
 ganized as a clearing-house board to have charge of and settle 
 all educational matters of common interests to the schools di- 
 rected by the State Board of Education, and to the schools un- 
 der the three boards of the higher educational institutions." 1 " 
 This board is composed of the governor, the state superintendent 
 of schools, two members of the state board of education, the 
 
 v Fvrst Biennial Eeport of the Joint Board of Higher Curricula, p. 6. 
 "An Educational Study of Alabama, U. S. Bureau of Education, Bull. 
 No. 41, p. 63.
 
 100 Legislative Control of State Normal Schools 
 
 presidents of each of the three institutions, and a member of 
 each of the three boards of trustee. In it the desire for cen- 
 tralized control can readily be seen. 
 
 Eighth, practically all recent legislation favors some form of 
 more centralized control than was found in the legislation it 
 displaced. The Alabama State Board of Education, created in 
 1919, displaced five boards of trustees, a state board for voca- 
 tional education, the state high school commission, state text 
 book commission, and the illiteracy commission. 18 New Mex- 
 ico's new law, effective 1921, created a board to "manage and 
 control all state educational, charitable, penal or reformatory 
 institutions." 17 It likewise displaces four boards of regents and 
 a state board of education. 
 
 Wisconsin, recognizing the principle of unity in its educa- 
 tional system, has established a state board of education whose 
 duties are "to present to the legislature budget estimates which 
 will represent a state view of the educational problem and not 
 merely a local view To secure the best available infor- 
 mation to serve as a basis for an educational policy which will 
 offer the widest possible educational opportunity to the people 
 of the state for the funds expended To make unneces- 
 sary and to prevent an unseemly scramble for legislative funds, 
 and lobbying in the interest of special legislation for particular 
 schools or parts of the educational system To keep edu- 
 cational institutions from unduly expanding their functions, 
 prevent duplication of work adequately provided for in other in- 
 stitutions, and promote harmony in the educational system and 
 single-minded devotion to the entire educational interests of the 
 state." 18 To this end several propositions defining the duties 
 of the several state officers, commissions and boards for the 
 cooperation and execution of the state's work have been adopted. 
 
 Ninth, many authoritative opinions favorable to the unit board 
 may be cited. The most significant is found in The Pro- 
 fessional Preparation of Teachers for American Public Schools : 
 "Whatever steps may be taken in Missouri or elsewhere in the 
 name of progress in educational organization, it is safe to say 
 
 "New Mexico Statutes, 1919. 
 
 ^Wisconsin's Educational Horizon, Vol. I, pp. 4-5.
 
 Significance of Different Types of Boards 101 
 
 that they will represent in some form the present inevitable 
 tendency toward simplification, by centralizing power and re- 
 sponsibility in the hands of a few individuals and those fitted 
 to use it." 19 The survey further states: ''The foregoing sec- 
 tion was devoted to a plan whereby these schools (normal schools) 
 should be given their natural place in the university organiza- 
 tion, with their executives in charge of the whole problem of the 
 preparation and supply of teachers for the state. Informed 
 opinion will likewise agree that it is a serious weakness to have 
 a state superintendent elected by the people as a partisan, and 
 that he should be replaced by a skilled officer, chosen solely for 
 his ability, on a tenure of good behavior, and responsible to a 
 group of intelligent laymen. The absolute need for concerted 
 action between these two authorities the one responsible for 
 training in state institutions, the other for administration at 
 large suggests at once the advisabililty of placing both func- 
 tions under one board of representative citizens." 20 
 
 Tenth, a unit board would be more economical. At present this 
 must remain in an assertive form because of lack of comparative 
 data of the multiple and the unit types. An ex-governor 
 recently said: "Our present system of controlling state 
 institutions, even though we still have a dual type and 
 pay each of the three members of the state board of control 
 $5,000 per year, each of four members of the state board of edu- 
 cation $1,000 per year, is undoubtedly less expensive than 
 our old multiple type of control." If this is in any measure 
 true where the boards are highly salaried officials, it should cer- 
 tainly be true where such boards serve, according to a well 
 established American principle in education, for expenses or 
 for a small per diem and expenses. 
 
 DETAILED PROVISIONS FOR A UNIT BOARD 
 
 The question, What is the best type of board a state 
 can provide by legislative enactment for the control of its 
 teacher training agencies, having been answered in favor of a 
 
 ""Bulletin No. 14, The Carnegie Foundation for the Advancement of 
 Teaching, p. 274. 
 "Ibid., p. 65. 
 
 LIBRARY 
 
 TEACHERS COLLEOK 
 MAHBARA. CALIFORNIA
 
 102 Legislative Control of State Normal Schools 
 
 state-unit board we shall now proceed with the detail of such a 
 board. This topic calls for an examination of the methods of 
 choosing members, the length of the term for which each mem- 
 ber is chosen, qualifications for membership, the number of 
 members on the board, ex-officio membership, and the compen- 
 sation. 
 
 Methods of Choosing Board Members. Eeference to the data 
 will show that of the seventy-seven different boards repre- 
 sented in the study governing state normal schools fifty-eight, 
 or seventy-five per cent, are appointed by the governors of 
 the different states. Over twenty-three per cent are ap- 
 pointed by the legislatures, the state board of education 
 or some other authority, while about two per cent are 
 elected by the people. The question concerns itself with how 
 to secure the most efficient persons for this particular position. 
 If we should attempt to draw our standard from city school 
 administration we would find opinion divided, leaning somewhat 
 toward the election plan. Strayer and Engelhardt say: 
 
 "The principles which govern in the case of the county board of edu- 
 cation, or of the city school board are identical. .... A board of 
 education elected at large, consisting of from five to nine members, 
 whose terms of office equal in length the number of members of the 
 board, serving without pay, has been found most acceptable in most 
 American cities."" 
 
 Cubberley says: 
 
 "A plan tried in some of our cities, but one less in favor now than 
 some years ago, is that of having the mayor of the city appoint the 
 board members instead of their being elected. This plan is especially 
 favored in large cities. In small cities there is no question but that 
 election at large by popular vote is the more desirable method, and 
 even for large cities experience seems to indicate that the results are 
 about equally satisfactory." 22 
 
 In a footnote following the above quotation we find: 
 
 "Election by the people and at large has certainly given better re- 
 sults in Boston, St. Louis, and Portland, Oregon, than has been the 
 case under appointment by the mayor in New York, Chicago or San 
 Francisco." 23 
 
 "Strayer and Engelhardt, The Class Boom Teacher, p. 37. 
 ^Cubberley, E. P., Public School Administration, p. 96. 
 "Ibid., p. 461. 
 "Ibid.
 
 Significance of Different Types of Boards 103 
 
 However, the same author in speaking of the application of city 
 school. administration to state educational organization says that 
 for general control, "There should be a state board for educa- 
 tional control, consisting of a small number of representative citi- 
 zens of the state, to be appointed by the governor and for rela- 
 tively long terms. A board of five or seven members, with the 
 term of one expiring each year, represents in many respects a 
 desirable form of organization." 24 The Alabama survey com- 
 mission says: "The consensus of opinion both within the state 
 and throughout the country is strongly in favor of the governor 
 appointed board." 25 
 
 The objections to electing a state board of education are prac- 
 tically the same as those frequently urged against electing the 
 state superintendent in that way, namely, that the true 
 issues involved in the election are so clouded by the so-called 
 larger political questions that the slate, following the name of 
 governor, goes through regardless of the qualifications of its can- 
 didates. In other words, educational ideals and policies are en- 
 tirely obscured in the political muddle. This disadvantage 
 might be overcome by having a separate election. It is ques- 
 tionable whether the extra expense would be justified by the re- 
 sults obtained. Perhaps the appointive power of the governor 
 can be so regulated that equally good results will be secured. In 
 reply to the argument that extreme centralization of power takes 
 away the just rights of the people, it may be said that the real 
 citizens in a true democracy are more concerned with having 
 equal educational advantages and opportunities for their chil- 
 dren than expressing their opinion on matters upon which they 
 are uniformed, and, upon which, during times of great political 
 agitation, it is impossible to secure information. For these 
 reasons it may be well to adhere to the standard now set by the 
 seventy-five per cent in the matter of securing efficient boards for 
 the management and control of our state teacher training schools. 
 
 Length of Term. A summary of the results in Table 4 
 shows that the length of term for normal school board 
 members varies from two years to twelve, with an average of 
 
 * An Educational Study of Alabama, U. 8. Bureau of Education Bull. No. 
 41, 1919, p. 432.
 
 104 Legislative Control of State Normal Schools 
 
 5.3 years, the exception to this being Arizona and New 
 York where members may be appointed for life or during sat- 
 isfactory service. It is difficult to set as a standard an exact num- 
 ber of years for membership on a teacher training board. It 
 would be difficult to prove that membership should be for twelve 
 years rather than nine. However, in choosing between nine 
 years and four there should be no difficulty. It is agreed by all 
 authorities that the length of term should be relatively long, at 
 least longer than that of the appointive power. The following 
 reasons for this seem valid: If the appointive power, the gov- 
 ernor, say, should be tempted to appoint at the beginning of 
 his term a political follower for political purposes, and the 
 length of the term of the member appointed be longer than that 
 of the governor, such appointment might act as a boomerang and 
 defeat the ulterior purpose of the governor. In this connection it 
 should be said that the terms should be so arranged that no 
 one governor shall appoint many new members. Further, wor- 
 thy state-wide teacher training programs demand a series of 
 years for accomplishment. If the board is changing rapidly 
 within the time required it is certain that the original program 
 will never be carried through. It is true that institutions and 
 institutional life should be modified with the changes in society, 
 yet there must be maintained a thread of stability if society is 
 to perpetuate itself; only board members who serve many 
 years can maintain the stability of institutional life. Many citi- 
 zens standing on the outside of an institution think that it 
 should be rapidly reformed. They may be right, but a sane de- 
 cision demands careful and continuous study in close contact, 
 and this requires a greater length of time than two or three or 
 probably four years. 
 
 Qualifications for Membership. As will be seen from the 
 data there is no uniform procedure among the states on the 
 specifications of qualifications. In some of the provisions none 
 are specified. In some there is a geographical distribution, 
 such as a limited number from the same county or one from each 
 congressional district. A few prohibit membership by the 
 appointees of the board, thus excluding all connected with
 
 Significance of Different Types of Boards 105 
 
 the state institutions for which the board exists; others 
 limit membership to schoolmen. A number mention polit- 
 ical party affiliation. The fallacy inherent in some of 
 the specifications is evident. The mention of the congres- 
 sional district, or any other geographical distribution, is 
 probably of political origin. To tell an intelligent governor 
 who has the appointive power, or citizens who cast the bal- 
 lot, that the eligible candidate for board membership 
 must have "character and fitness," is a waste of printer's 
 ink. An ex-governor, whom the writer consulted, who has made 
 a study of boards of control for educational institutions, said 
 that it might be of some assistance and a protection to the 
 governor in making the appointments if the law specified 
 at least a bi-partisan board. If the details are handled by a 
 sufficient number of experts, as will be recommended later in 
 this study, it might be well, in order to prevent an inbreeding 
 of ideas, to exclude the educational appointees of the board, 
 since their recommendations will at all times be before the board 
 in its deliberations. 
 
 Number of Members. In this investigation it has been 
 found that normal school boards range in number from 
 two to twelve, excluding the ex-officio members; the median is 
 six. The number who hold ex-officio relationship to such boards 
 ranges from one to three ; since twenty-five of these boards have 
 one ex-officio member, it may be said that the typical normal 
 school has a membership of seven. Of the many studies now 
 available concerning the work of committees and their relation- 
 ship to their boards, most of them lead to the conclusion that 
 committee service is time consuming in its usual form and that 
 it is overworked as an educational policy. This point is made 
 clear by Cubberley in Public School Administration (page 112). 
 
 Theisen, in his recent study, finds a positive correlation of plus 
 .56 between the number of committees and the size of the board 
 for city schools. All who have had to do with boards of any 
 kind know that a small board of from three to five members is 
 far more effective in handling any kind of business than a board 
 composed of larger membership.
 
 106 Legislative Control of State Normal Schools 
 
 Ex-Officio Membership. As a principle of city school 
 administration ex-offido membership would not be tolerated. 
 It may be surprising to find that forty-three normal school 
 boards have from one to three representatives who are there be- 
 cause of other relationship to the school or the political system. 
 By reference to the graphs, Section II, Chapter I, of this study, 
 it will be seen that the most frequent ex-officio member is the 
 state superintendent ; the next is the governor. It is difficult to 
 understand why the governor should retain a place on such 
 board except as a matter of custom. In a decentralized system 
 of control for all state educational institutions it can readily be 
 seen that the state superintendent has been considered the logi- 
 cal connecting link. His exclusive control over the public school 
 system and the intimate relationship which the normal school 
 bears to it again make it seem reasonable that the superintendent 
 should occupy a place on the board of control. Exact data would 
 be difficult to obtain concerning the effect of the superintendent as 
 ex-officio member on the normal school board. This study 
 does not offer such data. However, our contention is that the 
 unit plan for governing state teacher training institutions will 
 make this condition unnecessary in states where the superin- 
 tendent can be appointed by the unit board. In others, it may 
 be wise to retain the superintendent in some such relationship, 
 until a constitutional amendment gives the board the authority 
 to make the appointment. 
 
 Compensation of Members. Our data show that the "un- 
 paid board" is typical in nearly all states. This conforms 
 to the opinions of the best educational authority on the 
 subject. A few states have salaried boards for the control 
 of normal schools and other state institutions, but the experiment 
 is too new to furnish any evidence that such a procedure is nec- 
 essary in American education. 
 
 After providing a board for the control of teacher training 
 agencies of this type, including the details suggested by the 
 preceding discussion, namely, a state-unit board composed of 
 from three to five members appointed by the governor, or elected 
 at a separate election, with terms of service at least longer
 
 Significance of Different Types of Boards 107 
 
 than that of the governor, and serving without compensation, 
 it is then well to ask the question: Is efficient control of the 
 institution insured ? An affirmative answer can be given only in 
 so far as this board has a clear conception of its duties, looks 
 carefully to its own organization, and provides the administra- 
 tive machinery which will inspire and make economical use of 
 the personnel of the institution or institutions which it controls. 
 Anyone at all familiar with the work of a board of control and 
 with the institution or institutions knows the numerous details 
 necessarily involved in the successful operation of both. Since, 
 according to the principles already advocated by this study, 
 the board can neither as a whole nor through committee 
 action afford to do the actual details involved in its own 
 office, the alternative is that it must employ experts for 
 the details in order that it may use its own time judiciously. 
 At least two experts will be needed one will be an edu- 
 cational expert in addition to the state superintendent, the 
 other will be the financial or business expert with an adequate 
 office force. Others may be needed, and still others may be 
 called for special services, such as educational surveys, special 
 problems, and the location of professional schools. Reasons for 
 the employment of these experts will be indicated later in the 
 study. 
 
 Relationship of tine Board to the School, The provisions 
 made by the board for the organization and administration 
 of -the school deserve careful attention. The relationship 
 between the board and the institution should be one of mutual 
 understanding, sympathy, and helpfulness. When there are 
 misunderstandings and cross purposes both fail to function 
 properly. This relationship can best be seen by grouping the 
 work of the institution under two groups of activities. The first 
 group, which may properly be called major activities, concerns 
 the technical process of classroom instruction and the personal 
 relationship of faculty and student body. With this group the 
 board seldom concerns itself. The second group of activities, 
 since it exists primarily for the first, may be called a minor one, 
 yet it is extremely essential, and oftentimes its management
 
 108 Legislative Control of State Normal Schools 
 
 conditions to a great extent the efficiency of the entire institu- 
 tion. It might be termed the business side of the school, and is 
 concerned with publishing reports, supervising and planning 
 grounds, ordering supplies, and paying bills. These functions 
 must be discharged by someone, and unfortunately they often- 
 times are assumed willingly by the president of the normal school. 
 
 The Board's Concept of the President's Duties. When the 
 board fails to furnish sufficient office force, the president be- 
 comes a mere office automaton, ordering supplies, signing 
 checks, and paying bills. This is especially true if there is a 
 financial board or committee which does not see the real aim of 
 the institution nor recognize the function of a president. What 
 teacher or visitor has not had difficulty in obtaining a confer- 
 ence with the president because he has been busy with the above 
 named duties? 
 
 The following quotation will illustrate the true situation with 
 respect to the president's view of his own functions: 
 
 I realize that the president must be responsible for the property 
 of the state, for the purchase of supplies, to some extent for the 
 equipment, etc. I know the importance of routine, but nevertheless 
 there should someone in the school able to give time, strength and 
 consideration to the higher problems of the school. You do not know 
 how much office work there is connected with normal schools. It is 
 work that must be done by someone. I expect the larger portion of 
 the president's time is now taken up with office work. 28 
 
 In answer to the question concerning professional assistance 
 received by instructors from the president, the Wisconsin re- 
 port states: "One hundred seventy-eight conferences with in- 
 structors brought out the fact that the president had never 
 visited any classes in 49 cases. In replies to the questionnaire 
 51 reported visits ; 37 reported no visits. In two schools it was 
 apparent that the presidents had exercised a strong influence on 
 classroom work. In others there was little evidence of con- 
 structive supervision. This is due largely to the fact that the 
 presidents are so occupied with administrative details and prob- 
 lems that their professional duties have been neglected. The 
 appointment of a business manager in the general office of the 
 board should help correct this condition. Further steps should 
 
 "Wisconsin Survey of Normal Schools, pp. 86-87.
 
 Significance of Different Types of Boards 109 
 
 be taken to relieve the presidents of routine clerical work so 
 that they may devote themselves to the professional supervision 
 of their schools." 27 
 
 Since this study is concerned primarily with the best type 
 of board for a state normal school, and with the provisions made 
 by the board for the business details of the institutions it was 
 decided to select a well-known activity of the president and 
 find out what the board expects of him relative to this activity. 
 The one selected was the method of ordering supplies and pay- 
 ing bills. Since the latter follows closely the former, i.e., when 
 the president is closely identified with the process of ordering 
 supplies he is also expected to see that the details of payment 
 are looked after, only the data on ordering are presented. This 
 is summarized in Table 10. During the school year 1915-16 data 
 on ordering supplies and paying bills in the various normal 
 schools in the United States were collected by a personal letter 
 to the presidents of the schools. It was found that in thirty-five 
 states out of the forty-four it was customary to place practically 
 the entire responsibility on the president. Similar data collected 
 in the same manner in the spring of 1920 show that twenty-five 
 states make some kind of provision for shifting the responsi- 
 bility. Table 10 shows that five states have financial boards; 
 seven have purchasing agents; ten provide for the secretary, 
 finance committee, or the business agent to take part or all the 
 responsibility; in eight states there is mention of the president's 
 secretary, or the heads of departments participating in ordering 
 supplies ; in thirty-one the president seems to be still tied closely 
 to this activity; even in the other plans which have been in- 
 augurated he makes the small purchases. 
 
 The main plans for shifting this responsibility may be described 
 as follows : ' ' The president of the school prepares and sends to 
 the Board of Control, about a month in advance of the issuance 
 of an order, an estimate of the cost of all supplies needed by 
 the school, based upon competitive bids. The Board approves 
 or disapproves. On receiving the approval the president 
 enters the order. At the end of each month the bills are sent 
 
 "Ibid., p. 31.
 
 110 
 
 Legislative Control of State Normal Schools 
 
 TABLE 10 
 METHODS OF ODERING SUPPLIES 
 
 STATE 
 
 Supplies Ordered by 
 
 President 
 
 Secretary 
 or 
 Head Dept. 
 
 Sec. Board 
 Bus. Agent 
 Finance Com 
 
 Purchasing 
 Agent 
 
 Financial 
 Board 
 
 Alabama 
 
 X 
 X 
 X 
 X 
 
 
 
 
 X 
 
 Arizona 
 
 
 
 
 Arkansas 
 
 
 
 
 
 California 
 
 
 
 X 
 
 X 
 
 Colorado 
 
 X 
 
 X 
 
 Connecticut _ _ 
 
 X 
 X 
 X 
 X 
 X 
 
 X 
 
 
 Georgia 
 
 
 
 
 Idaho 
 
 
 X 
 
 
 
 Illinois 
 
 
 
 
 Indiana 
 
 
 
 
 
 Towa 
 
 X 
 
 X 
 X 
 
 
 
 Kansas _ 
 
 
 
 
 Kentucky 
 
 X 
 X 
 X 
 X 
 X 
 X 
 
 
 
 
 Louisiana 
 
 
 
 X 
 
 
 Maine 
 
 
 
 
 Maryland 
 
 
 
 
 
 Massachusetts 
 
 
 
 
 
 Michigan 
 
 
 
 X 
 
 
 Minnesota.- 
 
 
 X 
 
 
 Mississippi 
 
 
 X 
 
 
 
 Missouri 
 
 X 
 X 
 X 
 X 
 
 
 
 
 Montana 
 
 
 X 
 
 
 
 Nebraska 
 
 
 
 
 New Hampshire.- 
 
 
 
 X 
 
 
 New Jersey._ 
 
 X 
 
 
 
 New Mexico 
 
 X 
 X 
 
 
 
 
 New York. 
 
 
 
 
 
 North Carolina. 
 
 
 
 
 
 North Dakota 
 
 X 
 X 
 X 
 X 
 X 
 X 
 
 
 
 
 
 Ohio- 
 
 
 
 
 
 Oklahoma 
 
 
 X 
 
 
 
 Pennsylvania 
 
 
 
 
 Rhode Island 
 
 
 
 
 X 
 
 South Carolina. _. 
 
 
 
 
 South Dakota.- _. 
 
 X 
 X 
 
 X 
 
 
 
 Tennessee 
 
 X 
 
 
 
 Texas 
 
 
 
 X 
 
 Vermont 
 
 
 
 
 X 
 
 Virginia 
 
 X 
 X 
 X 
 
 
 
 
 Washington. 
 
 X 
 
 X 
 
 
 
 West Virginia 
 
 
 X 
 
 Wisconsin 
 
 
 
 X 
 
 Wyoming. 
 
 
 X 
 
 X 
 
 
 
 
 
 
 Total.... 
 
 31 
 
 8 
 
 10 
 
 7 
 
 5
 
 Significance of Different Types of Boards 111 
 
 to the board for approval. They check them and order the bill 
 paid by the secretary of the school. An emergency fund called 
 a revolving fund is allowed by law. The State Board of Con- 
 trol has complete jurisdiction over all expenditures. They have 
 the authority to pre-audit every proposed expenditure of every 
 state institution." The correspondent further says, "In gen- 
 eral the system is a satisfactory one. Sometimes we find the red 
 tape that must be unraveled an annoyance. Under a board 
 composed of unreasonable members we could be annoyed beyond 
 measure. ' ' 
 
 "Supplies for normal schools are purchased through a pur- 
 chasing agent upon requisition signed by the principal and 
 auditor. All the bookkeeping is done at the central office. It is 
 good in many ways ; the only drawback is the delay in obtaining 
 supplies. ' ' 
 
 Another correspondent, in speaking of purchases made by a 
 business agent of the board, says: "Requisitions are made by 
 the president and sent to the board ; if it approves the requisition 
 is sent to the board of affairs ; if it approves it places the order. 
 A copy of the order is sent to the president. The creditors make 
 sworn claims in triplicate which the president 0. K. 's and sends 
 to the board; it passes them and sends to the board of affairs 
 which retains one copy and sends the other to the auditor who 
 may approve or disapprove; if he approves he has a warrant 
 drawn for the bill. Perhaps no greater amount of red tape has 
 ever been found in the United States. " " The president and his 
 secretary attend to all the buying. All orders are placed on 
 order blanks, and checks are sent out on the tenth of each month. 
 The checks are approved by the president and signed by the 
 treasurer. Each month the bills are made into a budget, checks 
 issued, and the executive board [president, one member, and 
 treasurer] approves these bills. At the regular meeting [quar- 
 terly] of the board the action of the executive committee is ap- 
 proved. We find this system satisfactory for the reason that it 
 allows the buyer to take advantage of low prices at his discre- 
 tion, and at the same time keeps a rigid check on all the bills 
 paid by the institution." From a school where the president 
 is held directly responsible we have this information: "Sup-
 
 112 Legislative Control of State Normal Schools 
 
 plies are ordered by the president of the school. Bills are paid 
 upon the approval of the president when certified to by him." 28 
 
 Before considering the merits of these plans in detail the chief 
 duties of a normal school president should be considered. F. M. 
 McMurry, in speaking of the duties of a principal in a city school 
 system, says: ''Two kinds of duties whose relation to each 
 other is of the highest significance confront him from the start. 
 On the one hand he has to look after the condition of the build- 
 ing, the janitor service, and the fire drills ; to consult with par- 
 ents and children about tardiness, truancy, other misconduct, 
 and the health of the pupils ; and to advise with teachers about 
 these same things, together with the lighting of rooms, adjust- 
 ment of seats, care of desks, and books. On the other hand, he 
 is responsible for such an organization of the school as will se- 
 cure a high moral tone and for such assistance to the teachers 
 as will place the instruction on a high plane. In other words, 
 there is a very large class of duties, largely mechanical, that be- 
 long to the general manager and business man in distinction 
 from the educator. There is another large class dealing with 
 instruction and the formation of good habits, that are technical 
 in character, calling for skill as an educator. Not all of the prin- 
 cipal 's duties fall easily in one or the other of these two groups, 
 but in the main the distinction is valid. 
 
 "Which of these two shall dominate the other and occupy the 
 greater portion of his time, is one of the first questions to con- 
 sider in judging the efficiency of a principal. If he is primarily 
 a business manager he should be judged as such. If he is pri- 
 marily a professional leader, he should be judged very differ- 
 ently. The purpose of the school leaves no doubt about the 
 proper decision of this question, for it makes the business man- 
 agement of the school only a prerequisite to its more important 
 work of education. Proper attention to physical conditions, and 
 to numerous other details of general management, secures only 
 the conditions on which effective instruction and government 
 depend ; and it is, therefore, merely a means, while the latter are 
 the ends. A principal of a school must be closely identified with 
 
 "Personal correspondence.
 
 Significance of Different Types of Boards 113 
 
 instruction ; and he must be judged primarily as a leader in that 
 field, i.e., as a supervisor of instruction." 29 
 
 McMurry further says: "The manifold duties of principals 
 should be classified into three groups: (1) Those that are purely 
 clerical; (2) those that concern instruction more or less, but that 
 are largely routine and therefore require little special ability; 
 (3) those that require the technical ability of the educational 
 specialist. Such a classification having been effected, the sim- 
 pler tasks in (1) and (2) should be assigned to minor officials 
 in such a way that the principal has very little responsibility in 
 regard to them. Then a very definite understanding should be 
 reached that the principal shall identify himself primarily with 
 the duties listed in group (3)." 30 
 
 Theisen, after examining ' ' the provisions made by city boards 
 of education for centering authority in the hands of the chief 
 executive, i.e., the superintendent and his assistants," and by 
 a brief examination of the rules and regulations of business con- 
 cerns for centering authority, concludes that "the form of ad- 
 ministration which makes for efficiency in these fields is central- 
 ized or coordinated. It is one in which professional leadership 
 is recognized and in which executive functions are assigned to 
 experts." 31 
 
 It is readily admitted that the president of a state normal 
 school is neither a principal in a city system nor a city superin- 
 tendent, but we maintain that his duties are sufficiently similar 
 to permit the application of the same principles of administra- 
 tion. To substantiate this position we quote again from the 
 Missouri survey of state normal schools. Under the heading, 
 "Modern Conception of a President's Duties," we find: "As 
 educational institutions have become larger and more complex, 
 the mass of intersecting relations has made it imperative that 
 the guiding mind be set free, for close, detached study of the 
 principles that govern all this and other institutional procedure ; 
 that time be provided for abundant outside observation, com- 
 parison, and reflection ; and that he be so lifted above detail as 
 
 "McMurry, F. M., Elementary School Standards, pp. 175-76. 
 "Ibid., p. 210. 
 
 "Theisen, W. W., The City Superintendent and the Board of Education, 
 p. 100.
 
 114 Legislative Control of State Normal Schools 
 
 to serve steadily, without waste or hurry, his main function 
 to be the inspiring power and illuminating interpreter behind 
 
 the whole organization Missouri state normal schools, 
 
 with certain exceptions, are an interesting study in the respect 
 just noted. Administrative perspect is largely lacking ; all pow- 
 ers, great and small, radiate directly from the presidents. In 
 one the president runs the book store, revises the registration 
 of every student, and superintends the outlay of every penny; 
 in another, the president registers every student in so far as 
 
 this is physically possible He has recently arranged 
 
 for aid in checking up each student's record for graduation, but 
 passes finally on each himself, often reversing or modifying the 
 
 conclusions of his assistant At a third school the credit 
 
 records of all graduates for the decade or more that the en- 
 quirers studied were laboriously worked out in the handwriting 
 of the head of the institution. Administration of this type can 
 have but one result; the guiding officials impress one as con- 
 stantly immersed in endless affairs of surprising littleness; the 
 schools seem truncated, lacking clear, fresh, and comprehensive 
 thinking at the top." 32 
 
 The president of the state normal school has a large oppor- 
 tunity to influence the educational forces of the state. A nor- 
 mal school is strictly a professional school with a single purpose 
 to accomplish : " . . . . institutions established by the state to pre- 
 pare teachers as public servants for its schools should make that 
 their sole business and concern." 33 If the purpose is as herein 
 stated and if the duties of the president are as outlined in the 
 preceding discussion, it is quite evident that the president should 
 keep close to the processes of instruction. True inspiration 
 comes from saturation with the concrete processes of the pro- 
 fession. The concrete processes of teacher training are con- 
 cerned with professionalized subject-matter courses, with an 
 analysis of the teaching qualities in prospective teachers, and 
 with the highly technical processes of the effect of each 
 course upon the qualities possessed by the candidate. The 
 
 ""Bulletin No. 14, The Carnegie Foundation for the Advancement of 
 Teaching, p. 274. 
 p. 78.
 
 Significance of Different Types of Boards 115 
 
 president cannot therefore radiate that professional spirit un- 
 less he closely identifies himself with the teaching processes of 
 the institution. 
 
 When the board of control recognizes the importance of re- 
 lieving the president of the details of the office so that he may 
 put his energy where it properly belongs, it still faces the im- 
 portant problem of providing for the efficient handling of the 
 necessary office details within the school. Some attempts at re- 
 lief have been made in part because of a recognition of the facts 
 recited above, but largely because of a desire to introduce so- 
 called scientific management into educational institutions. Suf- 
 fice it to say that most of these attempts have originated in the 
 offices of the existing financial boards. As already pointed out 
 by the data in Table 10, there are financial boards, purchasing 
 agents, finance committees, secretaries to presidents for handling 
 financial details; there is also evidence that the president 
 assumes the entire responsibility. How is a financial board 
 organized with respect to the normal school and other boards? 
 The Board of Control of West Virginia, the Board of Control 
 and Economy of Alabama, the Board of Control of Texas and 
 the State Board of Control of California, are type of financial 
 boards. 
 
 By way of illustration, the first named board consists of three 
 members and is appointed by the governor for a term of six 
 years. This board receives and disburses appropriations made 
 by the state, and all moneys collected by all state institutions. 
 The heads of these institutions are required to report to the 
 Board of Control every penny collected, according to a pre- 
 scribed form which shows (a) date of collection, (&) name of 
 person or firm from whom collected, (c) purposes and period 
 of time, and (d) itemized and total amount. This board has 
 a secretary who looks after its publications, forms, records, and 
 general correspondence ; it also has a purchasing agent, a super- 
 intendent of buildings and construction, an expert accountant, 
 and an office force of considerable size. Each of the three 
 members receives $5,000 per year. 
 
 From this description it will be seen that all expenditures, 
 including repairs and improvements, or purchases of any kind,
 
 116 
 
 Legislative Control of State Normal Schools 
 
 must be decided upon by correspondence with the board, by a 
 visit of some member or employee of the board to the institu- 
 tion, or by the principal to the board. The only exceptions to 
 this are in the case of small items needed for immediate use in 
 the laboratories, and of supplies for the dormitories which must 
 be purchased locally. For these emergencies the principal at 
 the beginning of his administration is given a small sum, 
 usually $100 or $200, which is called "an advance allowance." 
 From this fund the principal pays these emergency bills, taking 
 
 TABLE 11 
 
 SHOWING COMPARISON OP PRICES ON ARTICLES NEEDED BY A SCHOOL 
 
 DORMITORY 
 
 Name of Article 
 
 Paid by 
 Board 
 
 Local 
 Retail 
 
 Local 
 Wholesale 
 
 Fine granulated cane sugar $ .07% 
 
 Kellogg 's toasted corn flakes 2.85 
 
 Black pepper .15 
 
 Old Reliable coffee, cwt 24.71 
 
 Vinegar .13 
 
 Octagon soap .04 
 
 Full cream cheese .17 
 
 Gold Medal flour, bbl 7.00 
 
 Water White oil 12% 
 
 Diamond oyster crackers .06 
 
 Breakfast bacon 18% 
 
 Pure lard 11% 
 
 S. C. hams 17% 
 
 California evaporated peaches .08 
 
 Sweet mixed pickles, 8 kg. 10 gal 5.25 
 
 Lima beans .09% 
 
 Boiled oats, cs 2.85 
 
 Arbuckle's roasted coffee, cwt 19.00 
 
 Standard corn, doz .75 
 
 Puffed rice, cs 2.85 
 
 Early June peas, doz .90 
 
 & .09 
 2.97 
 
 .18 
 30.00 
 
 .25 
 
 .04 
 
 .20 
 8.00 
 
 .15 
 
 .07 
 
 .22 
 
 .13 
 
 .22 
 
 .12% 
 9.00 
 
 .08 y 3 
 
 3.00 
 
 21.00 
 
 .90 
 
 5.00 
 
 1.00 
 
 $ .07% 
 2.85 
 
 .15 
 24.71 
 
 .22 
 
 .04 
 
 .17% 
 7.00 
 
 .12 
 
 .06% 
 
 .21 
 
 .14 
 
 .21 
 
 .07% 
 7.00 
 
 .09 
 
 2.90 
 
 19.00 
 
 .75 
 4.25 
 
 .90 
 
 receipts in duplicate, one of which he files in his own office, the 
 other he sends to the board which reimburses him to the amount 
 of the expenditure. However, all supplies of any consequence 
 must be ordered in advance by requisition upon the board. 
 The advantages claimed for Boards of Control are as follows: 
 
 A. That they are economical, i. e., the Board of Control saves 
 considerable money in purchasing supplies. Table 11 shows that
 
 Significance of Different Types of Boards 117 
 
 there is not a great deal of difference between the prices quoted 
 by one wholesale store and the prices paid by the board of con- 
 trol on food supplies for the dormitory. There is, however, a 
 wide difference between the local retail price which the former 
 local board paid and the wholesale price now paid by the board 
 of control on food supplies. There is also a greater difference 
 where permanent contracts are made for different kinds of school 
 supplies. This is shown by several typical examples : 34 
 
 Board 
 
 School Contract 
 
 Price Price 
 
 Remington typewriter $ 50.00 $ 35.00 
 
 Auditorium chairs (800) ea. 1.35 1.15 
 
 Knabe grand piano 485.00 395.00 
 
 Quality of coal ton 4.25 3.85 
 
 Laboratory furniture 960.00 827.00 
 
 B. That by being state-wide instead of local, the same ba- 
 sis may be used for the classification of receipts and expendi- 
 tures among the different schools of the state. This fact makes 
 it possible to say that school A has spent ten per cent or five 
 per cent more for office supplies than school B. In like manner 
 all other expenditures may be compared. The disadvantage 
 in not having a common basis for the classification of receipts 
 and expenditures may readily be seen by any one who attempts 
 to compare items of expenditure as reported by most state in- 
 stitutions. Keferenee to Appendix B will substantiate this 
 claim. 
 
 C. That the system removes the -school largely from local 
 prejudice and factional fights needs no argument. The interest 
 of the community as a whole is much greater in the normal 
 school, for all realize that the board of control acts for the inter- 
 ests of all citizens and not for a chosen few. If supplies 
 are purchased locally the purchaser is generally accused of 
 favoritism; when supplies are purchased by a state board the 
 school avoids this criticism. 
 
 D. That the system offers an opportunity for expert admin- 
 istration has already been stated, but should be mentioned 
 as a particular advantage. As now organized in W. Va. the 
 Board of Education and the Board of Control have men of high 
 
 "Normal School Records, Athens, W. Va.
 
 118 Legislative Control of State Normal Schools 
 
 educational and business standing. The secretary of the Board 
 of Education has made a special study of educational problems, 
 and the president of the Board of Control is a man of recog- 
 nized business ability. The buyer, the superintendent of build- 
 ings and construction, the accountant and other employees are 
 specialists in their fields. 
 The disadvantages of such boards are as follows: 
 
 A. The system works slowly, and the time lost in operating 
 it can hardly be measured in dollars and cents. Table 12, relat- 
 ing to purchases for one institution and covering a period of 
 six months for each of three years, shows exactly the time which 
 elapsed between making the requisition and the notice of pur- 
 chase. The date of receiving the article is, of course, always 
 much later. It will be noted that the time varies anywhere from 
 two days to 210 days. Items upon which the board asked for com- 
 petitive bids naturally require considerable time, but in prac- 
 tically all cases the time seems unnecessarily long; no doubt 
 part of the delay was caused by the great amount of executive 
 attention as well as detailed work required of the board. 
 
 Sometimes there is so much delay in the payment of bills that 
 creditors become impatient. This is especially true of farmers, 
 who like to turn their produce into ready cash; if they cannot 
 do this they prefer to sell elsewhere, or charge the school a price 
 which will compensate for the delay. Business firms, too, be- 
 come impatient and it is sometimes necessary to ask them to ex- 
 tend the thirty-day discount period on bills. For example, if 
 items are purchased on the first or second of the month the bill 
 is approved and sent to the board the thirtieth of that month. 
 By the time it goes through the routine of the office of the 
 board several days have elapsed before the check is returned to 
 the office of the institution which approved the bill; it must 
 then be mailed to the creditor. Table 13 shows the time elaps- 
 ing between sending the bill to the board for payment and the 
 time of sending the check to the creditor from the principal's 
 office. From this table it will be noted that the time when the 
 checks arrive from the board is very irregular, varying from 
 five to twenty-seven days, with a median of eighteen. This fact
 
 Significance of Different Types of Boards 119 
 
 TABLE 12 
 SHOWING TIME REQUIRED TO SECURE SUPPLIES THROUGH BOARD OF CONTROL 
 
 Date of 
 
 Date of Notice 
 
 Time 
 
 Item Needed 
 
 Eequisition 
 
 of Purchase 
 
 Beq. 
 
 Office chairs 
 
 July 
 
 10, 1912 
 
 July 
 
 12, 1912 
 
 2 da. 
 
 Catalogues 
 
 
 
 17, 
 
 Aug. 
 
 1, 
 
 15 
 
 Folding chairs 
 
 n 
 
 19, 
 
 < < 
 
 23, 
 
 4 
 
 Janitor supplies 
 
 Aug. 
 
 23, 
 
 Sept. 
 
 3, 
 
 11 
 
 Chemicals 
 
 
 
 14, 
 
 Mar. 
 
 4, 1913 
 
 210 
 
 Cooking utensils 
 
 if 
 
 24, 
 
 Dec. 
 
 24, 1912 
 
 122 
 
 Teachers class books 
 
 n 
 
 27, 
 
 Aug. 
 
 29, 
 
 2 
 
 Food supplies 
 
 Sept. 
 
 4, 
 
 Sept. 
 
 12, 
 
 8 
 
 Gasoline 
 
 t ( 
 
 17, 
 
 Oct. 
 
 1, 
 
 15 
 
 Creamery butter, 50 Ibs. 
 
 Oct. 
 
 1, 
 
 < < 
 
 8, 
 
 7 
 
 Tools for janitor 
 
 Sept. 
 
 25, 
 
 i t 
 
 11, 
 
 17 
 
 Magazines for Library 
 
 Oct. 
 
 5, 
 
 t ( 
 
 23, 
 
 18 
 
 Carbide 
 
 a 
 
 7, 
 
 < < 
 
 9, 
 
 2 
 
 Typewriter ribbons 
 
 
 
 8, 
 
 < 
 
 11, 
 
 3 
 
 Kerosene 
 
 ( ( 
 
 8, 
 
 < 
 
 11, 
 
 3 
 
 Microscopes 
 
 ( t 
 
 12, 
 
 < < 
 
 23, 
 
 9 
 
 Books for Library 
 
 Dec. 
 
 18, 
 
 Jan. 
 
 23, 1913 
 
 44 
 
 Food supplies 
 
 Aug. 
 
 12, 1913 
 
 Aug. 
 
 20, 1913 
 
 8 
 
 Coal 
 
 i ( 
 
 13, 
 
 Sept. 
 
 3, 
 
 21 
 
 Chemistry supplies 
 
 1 1 
 
 15, 
 
 li 
 
 3, 
 
 19 
 
 Crayon and erasers 
 
 t < 
 
 18, 
 
 Aug. 
 
 21, 
 
 3 
 
 Window shades 
 
 ( t 
 
 28, 
 
 1 1 
 
 30, 
 
 2 
 
 Physics supplies 
 
 Sept. 
 
 16, 
 
 Oct. 
 
 20, 
 
 34 
 
 Magazines and papers 
 
 14 
 
 27, 
 
 
 
 14, 
 
 l'i 
 
 Microscopes 
 
 Oct. 
 
 2, 
 
 
 
 14, 
 
 43 
 
 Cooking utensils 
 
 ti 
 
 7, 
 
 t< 
 
 20, 
 
 22 
 
 Cooking utensils 
 
 n 
 
 7, 
 
 Nov. 
 
 8, 
 
 32 
 
 Covers for pianos 
 
 1 1 
 
 27, 
 
 < < 
 
 12, 
 
 16 
 
 Maps 
 
 Nov. 
 
 15, 
 
 Feb. 
 
 2, 1914 
 
 79 
 
 Steel ladders 
 
 < ( 
 
 25, 
 
 Dec. 
 
 8, 1913 
 
 8 
 
 Food supplies 
 
 Dec. 
 
 2, 
 
 a 
 
 9, 
 
 7 
 
 Floor oil 
 
 it 
 
 4, 
 
 a 
 
 6, 
 
 2 
 
 Books for Library 
 
 tt 
 
 9, 
 
 Feb. 
 
 19, 
 
 64 
 
 Kerosene 
 
 
 
 13, 
 
 Dec. 
 
 27, 
 
 4 
 
 Brooms 
 
 1 1 
 
 16, 
 
 
 
 18, 
 
 2 
 
 Catalogs 
 
 Mav 
 
 19, 1914 
 
 July 
 
 8, 1914 
 
 50 
 
 Office supplies 
 
 July 
 
 , 
 
 
 
 15, 
 
 9 
 
 Coal 
 
 
 
 Sept. 
 
 1, 
 
 52 
 
 Furniture for not later than 
 
 it 
 
 11, 
 
 
 
 
 Aug. 20 
 
 i 
 
 20, 
 
 Aug. 12 
 
 to Aug. 31 
 
 22 
 
 Laboratory supplies 
 
 a 
 
 27, 
 
 < 
 
 29, 1914 
 
 33 
 
 Office supplies 
 
 1 1 
 
 30, 
 
 
 
 18, 
 
 19 
 
 Food supplies 
 
 Aug. 
 
 7, 
 
 ti 
 
 19, 
 
 12 
 
 Seed for crops 
 
 a 
 
 7, 
 
 a 
 
 21, 
 
 14 
 
 M. T. supplies 
 
 Sept. 
 
 4, 
 
 Sept. 
 
 22, 
 
 8 
 
 Desk telephone 
 
 < < 
 
 8, 
 
 < 
 
 17, 
 
 9 
 
 Carbide 
 
 n 
 
 8, 
 
 a 
 
 10, 
 
 2 
 
 Gasoline 
 
 a 
 
 14, 
 
 it 
 
 22, 
 
 8 
 
 Food supplies 
 
 ti 
 
 15, 
 
 a 
 
 17, 
 
 2 
 
 Magazines and papers 
 
 Sept. 
 
 16, 1914 
 
 Sept. 
 
 29, 1914, 
 
 13 da.
 
 120 Legislative Control of State Normal Schools 
 
 Magazines and papers Sept. 16 1914 Sept. 29 1914 13 da 
 
 Subscription to Curr't Evts. Oct. 2, 3 
 
 and World's Chronicle " 30, 
 
 Ref. books for Library " 30, Oct. 2, 3 
 
 Carbide " 30, Oct. 2, 3 
 
 Lumber for Man'l Tr'g. Oct. 3, Oct. 5, 2 
 
 Concrete walk July 11, July 21, 10 
 
 Repairs at Dormitory "18, " 21, 
 
 Paint for Dormitory "18, " 25, 7 
 
 Window shades " 29, Aug. 13, 15 
 
 Window glass Aug. 30, 8, 9 
 Dem. Sci., Chem. and Agri. 
 
 Labs., plastered and fitted Oct. 3, Oct. 5, 2 
 
 TABLE 13 
 
 SHOWING DATE OP SENDING BILLS TO THE BOARD, AND DATE OF RECEIVING 
 CHECKS FOR SAME 
 
 Sending Bills 
 
 Bec'd Checks 
 
 No. Days 
 
 1913 
 
 
 1913 
 
 Elapsing 
 
 April 
 
 2 
 
 April 21 
 
 19 
 
 May 
 
 3 
 
 May 15 
 
 12 
 
 June 
 
 4 
 
 June 26 
 
 22 
 
 July 
 
 5 
 
 Aug. 1 
 
 27 
 
 Aug. 
 
 4 
 
 Aug. 18 
 
 14 
 
 Aug. 
 
 25 
 
 Aug. 30 
 
 5 
 
 Oct. 
 
 2 
 
 Oct. 23 
 
 21 
 
 Nov. 
 
 4 
 
 Nov 22 
 
 18 
 
 Dec. 
 
 2 
 
 Dec. 22 
 
 20 
 
 Dec. 
 
 20 
 
 1914 
 
 
 1914 
 
 
 Jan. 9 
 
 20 
 
 Feb. 
 
 2 
 
 Feb. 18 
 
 16 
 
 March 
 
 4 
 
 March 17 
 
 13 
 
 April 
 
 3 
 
 April 16 
 
 13 
 
 May 
 
 1 
 
 May 15 
 
 14 
 
 June 
 
 1 
 
 June 15 
 
 14 
 
 July 
 
 6 
 
 July 20 
 
 . 14 
 
 June 
 
 18 
 
 June 25 
 
 7 
 
 Aug. 
 
 1 
 
 Aug. 20 
 
 19 
 
 Sept. 
 
 4 
 
 Sept. 24 
 
 _ 20 
 
 Oct. 
 
 2 
 
 Oct. 16 
 
 14 
 
 Oct. 
 
 31 
 
 ., Nov. 13 
 
 13 
 
 Dec. 
 
 2 
 
 Dec. 10 
 
 17 
 
 
 
 1915 
 
 
 Dec. 
 
 20 
 
 Jan. 9 
 
 11 
 
 makes it impossible to promise a creditor his check at any par- 
 ticular time. The Board says, "It is impossible for us to set a 
 certain date at which we can promise to forward checks to you 
 for payment of your bills. Our accounting department is en-
 
 Significance of Different Types of Boards 121 
 
 gaged practically all of the month in paying off all the bills of 
 the different state institutions under the management of this 
 Board, and in fact sometimes scarcely gets the bills for one 
 month paid before those of the next month begin to come in. 
 Some months the bills for an institution are paid early in the 
 month, and the next month the bills for the same institutions 
 are paid considerably later. We have no regular order in which 
 the bills of a particular institution are paid." 
 
 The above disadvantage could be overcome, first, by care on 
 the part of the principal to anticipate the needs of his school 
 several months in advance, and not month by month or day by 
 day, as is often the case ; second, by the Board giving the prin- 
 cipal a larger advance allowance fund, and by allowing him to 
 pay all small local bills promptly; third, by keeping a larger 
 office force in the Board's offices so that all supplies could be 
 ordered immediately upon receipt of the requisition. 
 
 B. Another disadvantage is the fact that it is difficult for 
 any board operating at a great distance from an institution 
 to see the needs of the institutions, and to allow expenditures in 
 proportion to these needs. To call the Board by telephone from 
 one institution which is the median distance for all institutions, 
 in this particular state, costs ninety cents for a three-minute 
 conversation. For a member of the Board to make a trip to 
 the institution referred to above, or for the principal to visit the 
 Board, costs for transportation as follows : 
 
 Kailroad fare Charleston to Princeton $3.50 
 
 Chair car 65 
 
 Hack or automobile, Princeton to Athens 75 
 
 Return trip $4.90 
 
 Total (exclusive of hotel bills) $9.70 
 
 The following shows the visits to the institution covering the 
 period indicated by the dates: 
 
 VISITS BY BOARD OP CONTROL 
 
 November 5, 1909 Member September 8, 1910 Member 
 
 December 17, 1909 Member March 3, 1911 Member 
 
 March 21, 1910 Member July 2, 1911 Member 
 
 April 6, 1910 Pres. and Member November 25, 1911 Member 
 
 May 7, 1910 Two Members April 12, 1912 Member 
 
 August 18, 1910 President
 
 122 Legislative Control of State Normal Schools 
 
 During the school year 1913-1914 a certain normal school had 
 one visit by the president of the Board and one by the Board's 
 engineer. In the summer of 1914 it had one visit by the en- 
 gineer, and no visits from September to January. From the 
 foregoing it is evident that it is very difficult for the Board to 
 keep in close touch with the needs of the school, and for the prin- 
 cipal to get action upon any question in a reasonable length of 
 time. 
 
 Thus we have seen that a state-unit board controlling educa- 
 tional and financial policies with experts for each type of ser- 
 vice is the only type of board which can fulfill the real functions 
 of a board as they relate to teacher training institutions. The 
 local multiple or dual type is deficient in many respects. Since 
 the president of the normal school is a large factor in its effi- 
 ciency, he must be free to ally himself with the professional in- 
 terests of his school. The financial board, which has many of the 
 defects of a state purchasing agent, or a finance committee, and 
 others besides, is not a professional asset to a normal school. 
 Educational ideals and financial support go hand in hand and 
 must be controlled by the same central authority. 
 
 SUMMARY 
 
 Our problem for this study has been to show how the provi- 
 sions made by legislative enactment and the interpretation of 
 these provisions affect teacher training agencies. In answering 
 the question it was necessary to exhibit data on the differ- 
 ent states having typical state normal schools. Forty-four 
 states have such schools, and the data relating to the legislative 
 control of these schools, with similar data for most of the 
 other educational institutions found in each state, were given in 
 outline form in Section I, Chapter I. An analysis of these 
 data as a whole revealed the fact that there were distinct types 
 in several states. These types of control have been referred to 
 as local, state, multiple, and unit with a slight variation in a few 
 states. 
 
 The problem was then broken into parts and at the beginning 
 of Chapter II these questions were raised: 1. What is the 
 best type of board a state can provide for its teacher training
 
 Significance of Different Types of Boards 123 
 
 institutions? 2. What details should be included in these pro- 
 visions? 3. What kind of organization should the board make 
 for its own work? 4. What kind of organization should the 
 board provide for the work of the institution it controls? 
 
 In answer to question 1 we have tried to make it clear that 
 since the teacher training problem is one big unified task for the 
 state, namely, that of supplying an adequate supply of trained 
 teachers for all its schools, there should be a definite policy lead- 
 ing to a state-wide program. This program ctein be carried out 
 economically and efficiently only through a state-unit type of 
 control. In answer to question 2 we found that if certain de- 
 tails were included or omitted from legislative enactments the 
 efficiency of the board thus created would probably be increased. 
 These details refer to methods and time of appointment or elec- 
 tion, number of members chosen, length of term, number of ex- 
 officio members, and the compensation. 
 
 Question 3 was answered by emphasizing a well-established 
 principle which makes the real duties of a good board largely 
 legislative. Since there are details relating to the educational 
 interests of the state and business details within the organiza- 
 tion of the board, we recommend that these be left to the respect- 
 ive experts in each field. By an analysis of the work of the in- 
 stitution we found two kinds of activities necessary. One is 
 purely educational, the other business. The former is always 
 taken care of by the teachers; the latter generally by the prin- 
 cipal or president. Through authoritative opinions and argu- 
 ment we tried to establish the fact that the president's main 
 functions in a teacher training institution relate to the profes- 
 sional aspects of the school ; therefore, in answer to question 4 
 it may be said that the board must provide sufficient office force 
 to take care of all necessary details.
 
 CHAPTER III 
 
 PROVISIONS RELATING TO TEACHER TRAINING 
 
 AGENCIES PROPOSED FOR LEGISLATIVE 
 
 ENACTMENT 
 
 From the conclusions arrived at in the preceding chapter the 
 following provisions for the control of state teacher training 
 agencies are proposed for legislative enactment. 
 
 STATE BOARD OF EDUCATION 
 
 Section 1. Name. Number of Members. There is hereby cre- 
 ated a State Board of Education which shall be a corporation 
 and as such may contract and be contracted with, plead and be 
 impleaded, sue and be sued, and have and use a common seal. 
 Said board shall consist of five members. 
 
 Section 2. Appointment. Term. The members of this board 
 shall be appointed by the governor of the state for the follow- 
 ing terms: one for two years, one for four years, one for six 
 years, one for eight years, and one for nine years. Thereafter 
 the governor shall, at the expiration of each term, make an ap- 
 pointment for the term of nine years. 
 
 Section 3. Salary. Expenses. No member of this board 
 shall receive a salary for his services, but each may receive a 
 per diem of not more than ten dollars per day and not to ex- 
 ceed twenty days in each school year, and actual expenses in- 
 curred while attending the meetings and performing any other 
 duties of said board. 
 
 Section 4. Duties. The board shall have full power and con- 
 trol of all the educational and financial interests of all state 
 teacher training agencies, now including the state normal schools, 
 the department of education in the university, and similar de- 
 partments in any other state institution now existing or hereaf- 
 ter established. It shall, upon the recommendation of its ex- 
 pert employees and officers, prescribe rules and regulations for 
 teacher training work in private and denominational schools and
 
 Provisions Relating to Teacher Training Agencies 125 
 
 colleges, and the high schools within the state, and through its 
 commissioner supervise such work. 
 
 Said board shall make full provision for the financial and 
 business routine of its own office, and for the educational and 
 business activities of the institutions it manages and controls. 
 In so doing it shall appoint and determine the salary of a sec- 
 retary who shall be an educational expert and who shall co- 
 operate with the heads of the institutions and with the commis- 
 sioner of education in matters concerning the board, the in- 
 stitutions, and the public schools of the state. It may also ap- 
 point a business manager, a buyer, and such other clerical help 
 as may be necessary in performing its duties. It shall appoint 
 the heads of the teacher training institutions. It shall appoint 
 the heads of the institutions, who shall at all times act as an 
 advisory committee to the board. The board shall also 
 provide sufficient office help within each institution to carry 
 on the business details, and shall with the advice and 
 consent of the above named advisory committee determine what 
 details are to be handled at each institution and what details 
 are to be handled in the central office of the board. After the 
 above executive duties are attended to the chief work of the 
 board shall concern the aims, purposes, and policies of the in- 
 stitutions in respect to the service that each renders the state. 
 
 DISTINCTIVE FEATURES OP PROPOSED LEGISLATION 
 The above is an attempt to provide a board for the effective 
 control of state teacher training agencies. This study does 
 not undertake to present data on the policy of a unit 
 board for all state educational institutions, yet almost every 
 step points towards such a board. Hence these provisions have 
 been constructed so that they may be easily converted into such 
 a board as shown by the graph on page 126 and such a procedure 
 would certainly be of no disadvantage to the teacher train- 
 ing institutions. Reasons for the details of the above 
 provisions have been found in the study. It should be 
 noted particularly that an attempt is made to define the 
 main duties of the board in its responsibility for the large 
 constructive educational measures which concern the problem.
 
 126 
 
 Legislative Control of State Normal Schools 
 
 PEOPLE: 
 
 Gov. 
 
 [ ADV. PoAgp | | 5r 
 
 CD. 
 
 TYPE OF BOARD SUGGESTED FOE STATE TEACHER TRAINING AGENCIES, IT& 
 ORGANIZATION AND ITS RELATIONSHIP TO THESE INSTITUTIONS 
 
 of training teachers. Authority, however, is centered in this 
 board for all financial and educational details. Clerical help is 
 provided for all financial details, and the educational policy is 
 secure in the hands of educational experts with a lay board for 
 endorsement. Provision is made for statewide purchases when- 
 ever they can be made to advantage, and clerical help for com- 
 puting unit costs and uniform accounting. Sufficient help is 
 given to the office of each institution to manage in an efficient 
 planner the details which naturally fall to it. With the ad-
 
 Provisions Relating to Teacher Training Agencies 127 
 
 vice and consent of the heads of the institutions the board 
 should agree upon the distribution of business details between 
 its office and the offices at several institutions. With such a plan 
 the main duties of the board must concern the large construct- 
 ive measures as they relate to each institution, and the head of 
 the institution must give his time and energy to professional 
 rather than business details. The Committee on Normal School 
 Standards and Surveys of the National Council of Normal 
 School Presidents and Principals says: 
 
 The administration and control of normal schools obviously depends 
 upon what the state has established by action of its legislature. Naturally 
 this control is different in different states. Every typical form of adminis- 
 trative control that has been tested out by human experience has revealed 
 disadvantages and defects. It is probable that in the future as in the past 
 changes in the type of administrative control will be made. The tendency 
 toward centralization of control will probably be extended in many states 
 to include the normal schools. The normal schools have nothing to fear 
 from centralized control per se. If the centralized control were biased in 
 its judgment or were controlled by influences uniformed and unsympathetic, 
 the normal school might temporarily suffer. It would not, however, per- 
 manently suffer because it is so close to the source of all social power and 
 so serviceable to public education. Therefore, it may be fairly said that 
 the normal school is largely indifferent to the type of administrative con- 
 trol which the state may adopt. Yet it is our belief that the normal schools 
 secure the best means and opportunity for free development when the 
 board of control is composed chiefly of laymen rather than of professional 
 educators. 
 
 An efficient board for teacher training agencies would, there- 
 fore, contain at least the following provisions: 
 
 1. A single unit board having control of and being responsible for all 
 educational and financial matters. 
 
 2. The members appointed by the governor or elected at a separate 
 election. 
 
 3. The number of members should be small. 
 
 4. There should be no ex-officio members. 
 
 5. The length of term should be reasonably long, at least longer than 
 that of the governor of the state. 
 
 6. The members should serve without compensation. 
 
 7. Their duties should be mainly those relating to constructive policies, 
 rather than those relating to professional, business, or clerical details. 
 
 As a matter of interest and by way of throwing more light 
 upon the legislative provisions relating to state normal schools
 
 128 Legislative Control of State Normal Schools 
 
 as they now exist, Table 14 has been constructed from the 
 seven points listed above. To each point is assigned a credit of 
 10, making a possible total of 70 credits for any state having 
 provisions for controlling its state normal schools approximating 
 the above outline. Let it be understood that this is not an at- 
 tempt at scientific measurement, but merely a device to show 
 wherein each state's provisions are weak in comparison with 
 the ideals advocated in this study. By reference to Tables 1 to 8, 
 the data for such comparison will be found. 
 
 Since some variation is found on these points in some states 
 it is necessary to give extra credit or deduct according to 
 the standards advocated in the study. If a state has a unit 
 board for all its state normal schools, it is given a perfect 
 score of ten. If it has the dual type of control, i. e., a financial 
 board also, it is scored 5. If it has a joint board of higher curricu- 
 la, or council of education, it is given five additional points. If it 
 has two ex-officio members, it is given zero ; if one and that the 
 state superintendent, it is given 5. In scoring on the length 
 of term the median of the states is accepted. This is approxi* 
 mately five years. For a shorter term than this zero is given, 
 while one-half credit extra is given for every year longer than 
 the median. In the number of members again the average is 
 taken rather than the ideal which we have established. If the 
 state board has fewer than six members an extra credit of one- 
 half is added, if more than six one-half is deducted for each 
 member. A salaried board is one that receives more than ex- 
 penses and a reasonable per diem. The most important point 
 and yet the most difficult to rate upon is the distinction of du- 
 ties. Since only four states indicate any intention to define the 
 duties as to kinds, it was necessary to give these a little extra 
 credit and rate the others uniformly low on this point. A credit 
 of two and one-half points was decided upon. It seems reason- 
 able that the board may rightfully spend one-fourth of its time 
 upon executive matters, the other three-fourths upon constructive 
 measures, and none at all in clerical business or professional 
 details. 
 
 Table 15 has been constructed from Table 14, and shows the 
 relative rank of the forty-four states included in this study.
 
 Provisions Relating to Teacher Training Agencies 129 
 
 TABLE 14 
 
 
 Unit Board for 
 Normal Schools 
 Educational and Financial 
 
 Appointed by Governor or 
 Elected at Separate Elec't 
 
 Not more than 
 Six Members 
 
 No Ex-Officio Members 
 
 Term at least 
 Five Years 
 
 Per Diem and 
 Expenses Only 
 
 Duties % Legislative 
 and y\ Educational 
 
 Total Scores 
 
 Alabama 
 
 10 5 
 
 10 
 
 10 
 
 
 
 10 %Yz 
 
 10 
 
 Vl* 
 
 61 
 
 Arizona 
 
 4 
 
 10 
 
 10 \y 2 
 
 5 
 
 o 
 
 10 
 
 5 
 
 45 5 
 
 Arkansas 
 
 10 
 
 10 
 
 10 1 
 
 
 
 o 
 
 10 
 
 5 
 
 46 
 
 California ... 
 
 
 
 10 
 
 10 
 
 
 
 
 
 10 
 
 5 
 
 35 
 
 Colorado 
 
 10 
 
 10 
 
 10 
 
 5 
 
 10 y 2 
 
 10 
 
 ?M 
 
 
 Connecticut 
 
 10 
 
 10 
 
 8 Yz 
 
 
 
 10 Yz 
 
 10 
 
 914 
 
 51 5 
 
 Georgia. .. 
 
 
 
 10 
 
 10 y 2 
 
 
 
 
 
 10 
 
 2Y 2 
 
 33 
 
 Idaho 
 
 10 
 
 10 
 
 9 
 
 5 
 
 10 
 
 in 
 
 2Yz 
 
 56 5 
 
 Illinois 
 
 10 
 
 10 
 
 8 Yz 
 
 
 
 10 Yz 
 
 10 
 
 91^ 
 
 51 5 
 
 Indiana 
 
 10 4 
 
 10 
 
 10 1 
 
 5 
 
 
 
 10 
 
 
 52 5 
 
 Iowa _. . .... 
 
 10 
 
 10 
 
 8 Yz 
 
 10 
 
 10 y 2 
 
 10 
 
 91^ 
 
 
 Kansas 
 
 10 
 
 10 
 
 10 Yz 
 
 5 
 
 
 
 
 
 91^ 
 
 38 
 
 Kentucky 
 
 
 
 10 
 
 10 1 
 
 5 
 
 
 
 10 
 
 5 
 
 41. 
 
 Louisiana.. . . . . 
 
 10 
 
 10 
 
 10 
 
 
 
 10 Yz 
 
 10 
 
 <>V 2 
 
 
 Maine 
 
 10 
 
 10 
 
 10 1 
 
 5 
 
 
 
 10 
 
 3 
 
 49. 
 
 Maryland 
 
 10 
 
 10 
 
 9 Yz 
 
 10 
 
 10 1 
 
 10 
 
 9 4 
 
 
 Massachusetts 
 
 10 
 
 10 
 
 10 
 
 5 
 
 
 
 10 
 
 ?M 
 
 47 5 
 
 Michigan. 
 
 10 
 
 
 
 10 Yz 
 
 10 
 
 10 Yz 
 
 10 
 
 
 53.5 
 
 Minnesota 
 
 10 
 
 10 
 
 9 
 
 5 
 
 
 
 10 
 
 ?Y 2 
 
 46.5 
 
 Mississippi 
 
 10 
 
 10 
 
 9 
 
 
 
 10 Yz 
 
 10 
 
 
 52. 
 
 Missouri 
 
 
 
 10 
 
 10 
 
 5 
 
 10 Yz 
 
 10 
 
 ?V 2 
 
 
 
 10 
 
 10 
 
 9 
 
 
 
 
 
 10 
 
 9V 2 
 
 41.5 
 
 Nebraska 
 
 10 
 
 10 
 
 10 Yz 
 
 
 
 10 
 
 10 
 
 ?V 2 
 
 
 New Hamshire.. .. 
 
 10 
 
 10 
 
 10 Yz 
 
 5 
 
 10 
 
 10 
 
 
 58 
 
 New Jersey 
 
 10 
 
 10 
 
 9 Yz 
 
 5 
 
 10 Yz 
 
 10 
 
 2Y> 
 
 57 
 
 New Mexico 
 
 
 
 10 
 
 10 Yz 
 
 10 
 
 
 
 10 
 
 2Y> 
 
 
 New York 
 
 10 
 
 10 
 
 7 
 
 10 
 
 10 3 
 
 10 
 
 ? 1 4 
 
 62.5 
 
 North Carolina 
 
 
 
 10 
 
 10 
 
 10 
 
 10 Yz 
 
 10 
 
 
 53. 
 
 North Dakota. 
 
 10 
 
 10 
 
 10 3 
 
 
 
 10 y 2 
 
 
 
 ?V 2 
 
 45.5 
 
 Ohio . 
 
 
 
 10 
 
 10 
 
 10 
 
 10 
 
 10 
 
 
 5? 5 
 
 Oklahoma- 
 
 10 
 
 10 
 
 10 
 
 5 
 
 
 
 10 
 
 2Y> 
 
 47 5 
 
 Oregon _. 
 
 10 
 
 10 
 
 10 
 
 
 
 10 Yz 
 
 10 
 
 2Yz 
 
 53 
 
 Pennsylvania 
 
 
 
 10 
 
 8 Vz 
 
 10 
 
 
 
 10 
 
 7V 2 
 
 
 Rhode Island.... 
 
 10 
 
 10 
 
 10 iy 2 
 
 
 
 10 
 
 10 
 
 
 53 6 
 
 South Carolina 
 
 10 
 
 
 
 9 
 
 
 
 10 Yz 
 
 10 
 
 2Yz 
 
 4? 
 
 South Dakota. 
 
 10 
 
 10 
 
 10 Y 2 
 
 10 
 
 10 M 
 
 
 
 2Yz 
 
 53 5 
 
 Tennessee 
 
 10 
 
 10 
 
 8 H 
 
 10 
 
 10 H 
 
 10 
 
 2Yz 
 
 56 5 
 
 Texas 
 
 
 
 10 
 
 10 
 
 5 
 
 10 H 
 
 10 
 
 ?V 2 
 
 
 Vermont 
 
 10 
 
 10 
 
 10 
 
 10 
 
 10 
 
 10 
 
 
 6? 5 
 
 Virginia 
 
 
 
 10 
 
 7 
 
 n 
 
 
 
 10 
 
 2Yz 
 
 ?9 5 
 
 Washington 
 
 5 
 
 10 
 
 10 \Yz 
 
 10 
 
 10 ^ 
 
 10 
 
 ?V 2 
 
 59 5 
 
 West Virginia.- 
 
 5 
 
 10 
 
 10 
 
 5 
 
 10 H 
 
 
 
 
 
 Wisconsin 
 
 10 
 
 10 
 
 8 
 
 5 
 
 10 
 
 10 
 
 ?.^z 
 
 55 5 
 
 Wyoming 
 
 10 
 
 10 
 
 10 
 
 5 
 
 10 Yz 
 
 10 
 
 2Yz 

 
 130 Legislative Control of State Normal Schools 
 
 TABLE 15 
 
 STATES BANKED ACCORDING TO TOTAL SCORES (BASED ON TABLE 14) 
 
 Vermont/ 62.5 
 
 New York 62.5 
 
 Maryland 62. 
 
 Iowa 61. 
 
 Alabama 61. 
 
 Washington 59.5 
 
 Colorado 58. 
 
 New Hampshire 58. 
 
 Wyoming _ 58. 
 
 New Jersey 57. 
 
 Idaho 56.5 
 
 Tennessee 56.5 
 
 Wisconsin 55.5 
 
 Michigan 54.5 
 
 Rhode Island 53.5 
 
 South Dakota 53.5 
 
 Louisiana 53. 
 
 Nebraska 53. 
 
 North Carolina 53. 
 
 Oregon r 53. 
 
 Ohio 52. 
 
 Mississippi 52. 
 
 Indiana 52.5 
 
 Illinois 51.5 
 
 Connecticut 51.5 
 
 Maine _ 49. 
 
 Texas 48. 
 
 Oklahoma _ 47.5 
 
 Massachusetts 47.5 
 
 Missouri 47.5 
 
 Minnesota 46.5 
 
 Arkansas 46. 
 
 Arizona 45.5 
 
 North Dakota 45.9 
 
 West Virginia 43. 
 
 New Mexico 43. 
 
 South Carolina 42. 
 
 Montana 41.5 
 
 Pennsylvania 41. 
 
 Kentucky 41. 
 
 Kansas 35. 
 
 California 35. 
 
 Georgia 33. 
 
 Virginia 29.5
 
 CHAPTER IV 
 
 RESULTS OF SUGGESTED PROVISIONS 
 
 As a possible outcome of the conclusions reached in this study 
 it is hoped : First, that the unit type of board will be provided for 
 at least all state teacher training agencies, and that these boards 
 will have the supervision of all other teacher training agencies 
 which may exist in the state. Second, that the duties of the 
 board will be confined largely to legislative and approval meas- 
 ures and that all educational and business details will be placed 
 in the hands of experts. Third, that the board's concept of 
 the duties of its chief educational expert (president of the nor- 
 mal school) will be such that it will provide a business organi- 
 zation which he needs merely to supervise, and that it will 
 allow him to spend the major part of his time with the pro- 
 fessional activities of the institution. Fourth, it is further be- 
 lieved that these principles will make possible and lead to the 
 adoption of a classification of receipts and expenditures and of 
 other business forms which will give much aid in studying the 
 educational problems relating to teacher training agencies and 
 other institutions. 
 
 The Committee of Eleven, in speaking of a plan for normal 
 school statistics, says: "State normal schools are now more 
 numerous and probably more essential and more appreciated 
 
 than any other kinds of state educational institutions 
 
 Their organization is simple, their support is direct A 
 
 proper study of statistics, a proper classification of organized 
 efforts, a proper conception of what is being done everywhere 
 in the endeavor to train and to educate teachers must enlarge 
 the horizon of these schools, must compel them to recognize their 
 chances, must urge them to enlarge their field of usefulness and 
 power, and must enable them to enter upon activities and pos- 
 sibilities that would make it possible for them to participate in 
 the remarkable development that the United States is receiving. 
 .... Without this knowledge of what is going on elsewhere,
 
 132 Legislative Control of State Normal Schools 
 
 without this touch of comparative standards and undertakings, 
 without this chance to keep abreast of the times, this kind of 
 educational work will remain provincial, theoretical, and inde- 
 terminate." 
 
 If the ideals of this committee and the possibilities contained 
 in the legislation proposed in Chapter III of this study are to be 
 realized there must be adopted a system of classifying receipts 
 and expenditures as well as the use of uniform business forms 
 by boards and principals of state normal schools. An exam- 
 ination of many systems now in use reveals similarity in mean- 
 ing but such great diversity in terms that it is practically im- 
 possible to tell whether a certain item of expenditure has been 
 made for operating a boarding house or for paying a teacher's 
 salary. A careful comparison gives evidence that all receipts 
 may be classified under three main heads: (A) Capital Expend- 
 itures; (B) Maintenance; (C) Operation. 
 
 An appropriation made by the legislature could be made 
 under these three headings as easily as under (a) buildings and 
 grounds, (6) repairs and improvement, and (c) current ex- 
 pense, as is now customary in some states. All other receipts 
 could be placed by the board under one of these divisions. For 
 all expenditures the same classification could be carried out with 
 many sub-divisions. 
 
 The classification of expenditures as given below in the first 
 division includes everything which is new and which will not be 
 consumed in operation. Maintenance includes all repairs and 
 replacements which keep the property in usable condition. 
 When an article is replaced by something better, the difference 
 in cost may be charged to capital. Operation includes all ex- 
 penditures made for carrying on the work of the institution. 1 
 
 'The writer is especially indebted to the secretary of the Board of 
 Regents of Wisconsin for many of these suggestions in the following 
 outline.
 
 Results of Suggested Provisions 133 
 
 A. CAPITAL EXPENDITURES 
 I. Land. 
 
 Cost of new land. 
 II. Land Improvements. 
 
 Grading, fences, driveways, roads, gutters, curbing, 
 sewers, laying pipe, trees, new lawns, landscape 
 gardening. 
 
 III. Buildings and Fixtures. 
 
 All work on new buildings, or additions. Cost of ma- 
 terial used, including transportation. Fixtures which 
 cannot readily be removed. 
 
 IV. Machinery. 
 
 All machinery not used for educational purposes, as 
 engines, boilers, motors, hoists, and lawn mowers 
 not machinery used for educational purposes. 
 
 V. Educational Apparatus. 
 
 Chemical, physical, physiological, agricultural maps, 
 charts, models, implements, tools, benches, machines, 
 forges used in manual training; dishes for domestic 
 science not articles that are easily broken or lost, 
 as test tubes, and breakers. 
 VI. Furniture and Furnishings. 
 
 Desks, office furniture, lockers, library furniture, type- 
 writers, adding machines, curtain shades, pianos, 
 pictures and works of art not used for instruction; 
 flower pots, window boxes, dishes and kitchen ware 
 for dormitory ; rugs and linoleum. 
 VII. Hand Tools. 
 
 Shovels, rakes, engineers' tools, and vices used about 
 the building. 
 
 Will. Library. 
 
 Reference and other library books. Cards, guide 
 
 cards for catalog, pictures, and library work. 
 IX. Museum. 
 
 Specimens which are kept for their general use whether 
 used for instruction or not. Models or specimens used 
 exclusively for instruction.
 
 134 Legislative Control of State Normal Schools 
 
 X. Text-books. 
 
 Text-books, pictures and music used in regular 
 instruction. Not sheet music soon used up. 
 
 B. MAINTENANCE 
 I. Land and Land Improvements. 
 
 Keplacing trees, shrubs, fertilizer. 
 II. Buildings and Fixtures. 
 
 New roofs, painting, replastering, dry batteries, lamps, 
 rewiring. 
 III. Machinery. 
 
 Eelining boilers, replacing grates, repairing motors. 
 
 IV. Educational Apparatus. 
 
 All repairs. 
 
 V. Furniture and Furnishings. 
 
 Upholstering, refinishing, relaying linoleum, replacing 
 
 dishes. 
 VI. Hand Tools. 
 
 All repairs. 
 VII. Library. 
 
 Rebinding books, replacing worn-out books. 
 
 C. OPERATION 
 I. Administration. 
 
 1. Salaries of officers; principal's salary. 
 
 2. Salaries of clerks and stenographers, bookkeepers, 
 
 and all office help. 
 
 3. Traveling expenses of the principal. 
 
 4. Stationery and office supplies. 
 
 Letterheads, ink, paper, pens, pencils, pads, type- 
 writer and adding machine supplies used in the 
 office not supplies used in the training school. 
 
 5. Postage stamps, postal cards, postage on catalogs. 
 
 6. Telephone and telegraph long distance and local 
 
 charges. 
 
 7. Express, freight and drayage, and transportation 
 
 of all material. 
 
 8. Printing (other than stationery). 
 
 Catalogs, bulletins, miscellaneous printing and
 
 Results of Suggested Provisions 135 
 
 advertising. Not class record books, or printing 
 used for instruction only. 
 
 9. Sundry supplies and expenses not readily classi- 
 fiable elsewhere. 
 II. Physical Plant. 
 
 1. Salaries and wages. 
 
 a. Engineers includes firemen and all extra 
 help needed in keeping the building heated. 
 
 b. Janitors includes cleaning, scrubbing, care 
 of grounds, walks, lawns. 
 
 2. Heat, light, water. 
 
 All fuel for lighting or heating not for instruc- 
 tion purposes. 
 
 3. Sundry supplies: Brooms, mops, cleaning sup- 
 
 plies, hooks, wires, nails, lubricants, and all sup- 
 plies used for janitor or engineer consumable in 
 school expenses for the main school year. 
 
 4. Sundry expense: Hauling ashes, flowers for dec- 
 
 orations of rooms or grounds. 
 
 III. Instruction. 
 
 1. Salaries of teachers. Regular and substitute. Sal- 
 
 aries of pianists and student help for teachers. 
 
 2. Text-books: Regular text-books and also music 
 
 books used for chorus practice and class work 
 
 > 
 
 not sheet music soon used up. 
 
 3. Fuel and power for instruction. All fuel and 
 
 power used in the laboratories and for other in- 
 struction purposes. 
 
 4. Sundry supplies: Acids, test tubes, beakers, ink, 
 
 crayon, paper, pens, pencils, tablets, copybooks, 
 erasers, class books, sheet music, ribbon for diplo- 
 mas ; all consumable supplies whatever, including 
 those for special departments.
 
 136 Legislative Control of State Normal Schools 
 
 5. Sundry expense: Teachers' traveling expenses, 
 lectures of a special nature, special charts and 
 other instructional expense not classifiable else- 
 where. 
 IV. Library. 
 
 1. Salaries of librarian and assistants regular and 
 
 student help. 
 
 2. Subscription to newspapers and periodicals all 
 
 periodicals taken for the library, but not the 
 binding of them. 
 
 3. Sundry supplies and expenses temporary covers 
 
 for books, magazines and other supplies. 
 V. Student Welfare Activities. 
 
 1. Student health. Medical inspection provided by 
 
 the school ; medical advice for pupils ; lectures on 
 sanitation. 
 
 2. Entertainments, lectures and concerts. 
 
 3. Athletics. Money paid for coaching, traveling ex- 
 
 penses of teams, expenses of umpires, referees. 
 
 4. Student organizations. Debating or literary so- 
 
 cieties; student publications. 
 VI. Summer Session. 
 
 This includes all sub-items of all the main headings 
 listed above and is intended to list all summer 
 school expenses for the main school year. 
 VII. Insurance. All payments for state insurance, or boiler 
 
 insurance. 
 
 VIII. Undistributed expense. All expense not classifiable 
 elsewhere. Care should be taken to put very few 
 items under these general headings. 
 
 An accurate classification of items of expenditure will fall 
 short of its purpose unless there are uniform blanks for all op- 
 erations dealing with the finances. The following business forms 
 are recommended for use in the principal's office and in the 
 office of the board.
 
 Results of Suggested Provisions 137 
 
 A. FORMS FOR USE IN THE PRINCIPAL'S OFFICE 
 
 1. Report of cash collected. 
 
 2. Report of enrollment and attendance. 
 
 3. Inventory of school property. 
 
 4. Requisition blank. 
 
 5. Payroll of teachers and other employees. 
 
 6. Voucher to accompany all bills. 
 
 7. Report of cash expended by the principal. 
 
 B. FORMS FOR USE IN THE BOARD'S OFFICE 
 
 1. Quotation blanks. 
 
 2. Purchasing order. 
 
 3. Appropriation ledger sheet. 
 
 4. Expense ledger sheet. Normal school. 
 
 5. Expense ledger sheet. Training school. 
 
 6. Expense ledger sheet. Dormitory. 
 
 7. Register vouchers. 
 
 8. General balance sheet. 
 
 9. Monthly statement of receipts, expenditures, and balances. 
 
 10. Monthly statements of unit costs per general expendi- 
 
 tures. 
 
 11. Annual statements of unit costs per subject. 
 
 C. FORMS FOR USE IN THE BOARD'S ANNUAL REPORT 
 
 1. Statement setting forth the kind of school and its pur- 
 pose. 
 
 2. Cash collected from enrollment fees. 
 
 3. Appropriations and other receipts. 
 
 4. Voucher register. 
 
 5. Summary of expenditures. 
 
 6. Special personal service record. 
 
 7. Enrollment and graduation record. 
 
 8. Instructional cost per department. 
 
 9. Student clock hour load. 
 
 10. Cost per student clock hour load. 
 
 11. Graphs and comparative tables.
 
 138 Legislative Control of State Normal Schools 
 
 DETAILS OF FORMS RECOMMENDED 
 
 A. FORMS FOR USE IN THE PRINCIPAL'S OFFICE 
 
 1. Record of Cash Collected. 
 
 The enrollment of pupils is the first step at the beginning of 
 each new school year. This process entails the collection of 
 certain fees which must be reported to the central authority; 
 hence the necessity of a cash collected blank. Provisions are 
 made on this blank for the following items: (a) classification 
 of pupils enrolling; (&) date; (c) name; (d) time covered by 
 the payment; (e} enrollment fee ; (/) laboratory fee; (g) room; 
 (ft) board; (t) miscellaneous; (j) recapitulation. 
 
 Proper classification of pupils should be insisted upon. Under 
 the heading of laboratory fees the name of the laboratory in 
 which the pupil is working should be given; this will save 
 many columns, and make the report less bulky. Non-resident 
 and other miscellaneous fees which are collected infrequently 
 may also be written in order to save making the form too 
 bulky. 
 
 A suggested form is shown on page 139.
 
 Results of Suggested Provisions 
 
 139 
 
 i * - 
 
 ill 
 
 S -3 o o 
 
 U _] < 05 B 
 
 
 O 
 Z 
 
 t89.J 
 
 1*1 
 
 o 
 y 
 
 O 
 
 ^ 
 I 
 U 
 
 
 
 I
 
 140 
 
 Legislative Control of State Normal Schools 
 
 2. Report of Enrollment and Attendance. 
 
 A report of enrollment and attendance should be made at 
 least twice each year. The items which the form contains 
 are self-explanatory: 
 
 a. Number enrolled in the regular normal course. 
 
 b. Number enrolled in the secondary course. 
 
 c. Number enrolled in music. 
 
 d. Number enrolled in art. 
 
 e. Number enrolled in expression. 
 
 /. Number enrolled in short or other courses. 
 g. Total in all courses. 
 7i. Number counted more than once. 
 i. Total net enrollment. 
 
 j. Training school enrollment must not be included in above. 
 k. Number who withdrew after enrolling, and causes of with- 
 drawal. 
 
 REPORT OF ENROLLMENT AND ATTENDANCE 
 
 State Normal School 
 
 
 
 
 Semester, Ending 
 
 , 19 .. 
 
 
 
 
 
 
 
 Enrollment During Semester 
 
 
 
 
 Normal Course . 
 
 Boys 
 
 Girls 
 
 Total 
 
 Secondary Course 
 
 
 
 
 College Course 
 
 
 
 
 Music 
 
 
 
 
 Art ~ 
 
 
 
 
 Expression 
 
 
 
 
 Total. 
 
 
 
 
 Counted more than once 
 
 
 
 
 Net Enrollment 
 
 
 
 
 Practice School Enrollment 
 
 
 
 
 Withdrew during Semester 
 
 
 
 
 Causes of Withdrawal: 
 
 
 
 
 It may be noted that this form is so constructed that there is no oppor- 
 tunity to count the same pupil twice and thereby swell the enrollment be- 
 yond what it should be.
 
 Results of Suggested Provisions 
 
 141 
 
 3. Inventory of School Property. 
 
 At the beginning of each school year there should be a care- 
 ful inventory of all school property. This should include the 
 following items: 
 a. Detailed description of the property, and the use to be made 
 
 of the room or building during the year. 
 6. Age length of time it has been used. 
 
 c. Original cost. 
 
 d. Additions. 
 
 e. Present value. 
 
 /. Time to be occupied. 
 
 INVENTORY OF NORMAL PROPERTY 
 
 
 
 *" 
 
 
 
 ^ 
 
 Detailed Description Including 
 Present Condition and Use 
 
 Age in 
 Years 
 
 Original 
 Cost 
 
 Additions 
 (Date) 
 
 Present 
 Value 
 
 Days per week 
 Hours per day 
 Occupied 
 
 
 
 
 
 
 
 4. Requisitions. 
 
 Since supplies are an essential part of the operation of every 
 institution, a convenient means for ordering them is necessary. 
 The following form is recommended, but should be printed on 
 paper of different colors so that the color may indicate the fund 
 out of which the bill should be paid. A duplicate of the requi- 
 sition must be kept in the principal 's office ; it should differ in 
 color slightly from the original copy, 
 a. Order number. 
 6. Name of fund from which the invoice is to be paid. 
 
 c. Name of firm or firms from which the items may be secured. 
 
 d. Item number. 
 
 e. Quantity on hand. 
 /. Quantity required. 
 
 g. Description of articles. 
 
 ~k. Purpose for which the article is desired.
 
 142 
 
 Legislative Control of State Normal Schools 
 
 REQUISITION FOR SUPPLIES _. NO 
 
 To the State Board of Education: 
 
 The following named articles are needed at this institution, 
 livered .. 
 
 To be de- 
 
 Purchase 
 From 
 
 Item 
 No. 
 
 Quantity 
 on hand 
 
 Quantity 
 Desired 
 
 Description of 
 Article 
 
 Purpose 
 
 Estimated 
 Cost 
 
 
 
 
 
 
 
 
 5. The Pay Roll. The pay roll should list the following items : 
 
 a. Name of the employee. 
 
 b. Nature and amount of service rendered. 
 
 c. Rate per month. 
 
 d. Amount due this month. 
 
 0. Signature received in full. 
 
 /. Principal's report of absences. 
 
 g. The back of the report should show a recapitulation of the 
 expenditures under appropriate headings, and the prin- 
 cipal's affidavit. 
 
 PAY EOLL 
 
 State Board of Regents 
 
 19. 
 
 To each of the persons hereinafter named for services rendered under 
 contract with said board, the nature and particulars whereof are herein 
 specified. 
 
 Name 
 
 Nature and Amount of 
 Services rendered 
 
 Rate 
 Per month 
 Per day 
 
 Total 
 Due 
 
 Deductions 
 
 
 (Reverse Side) 
 Operation 
 Principal 
 
 
 
 
 
 Teachers 
 
 
 
 
 
 Librarians 
 
 
 
 
 
 Clerk* 
 
 
 
 
 
 Engineers 
 
 
 
 
 
 Janitor , 
 
 
 
 
 
 Laborers 
 
 
 
 
 
 I hereby certify, &c. 
 Prin. 
 
 
 
 
 
 
 

 
 Results of Suggested Provisions 143 
 
 6. Voucher to Accompany Bills. 
 
 A voucher should accompany all bills which are sent to the 
 Board. A similar one may be used by the firm in sending in- 
 voices to the school. One side should contain the sworn state- 
 ment; the other should summarize the account under the ap- 
 propriate headings according to the system recommended for 
 the classification of accounts. 
 
 State of _ 
 
 Board of Education for State Normal Schools. 
 
 To ~ , Dr. 
 
 date 192 
 
 (This is not a bill and should be accompanied by an invoice.) 
 
 For Sundries furnished to - Normal School 
 
 as per attached invoice numbered $ 
 
 State of 
 
 if _ 
 
 (Post Office) (State). 
 
 County of _ 
 
 I, - , Claimant of attached invoice, 
 
 do solemnly swear that the charges are correct. 4 
 
 Subscribed and sworn to before me this _ day 
 
 of _ , 19 
 
 Signed. 
 .Notary Public 
 
 My commission expires. 
 
 I hereby certify that the items named herein have been furnished to this 
 school, and that no part has been paid. 
 
 Principal 
 REVERSE SIDE 
 
 1. Capital Expenditures. 3. Operation. 
 
 (all main headings listed.) (all main headings listed.) 
 
 2. Maintenance. 
 
 (all main headings listed.)
 
 144 
 
 Legislative Control of State Normal Schools 
 
 7. Cash. Expended. 
 
 For emergency supplies it is necessary for the principal to 
 have an "Advance Allowance" to be kept in the local bank and 
 subject to his check. All expenditures from this fund must be 
 reported to the Board before he can be reimbursed for the ex- 
 penditure. 
 a. Date. 
 
 To whom paid. 
 
 Time or quantity. 
 
 Rate or price. 
 
 For what purpose. 
 
 Total amount. 
 
 CASH EXPENDED BY PRINCIPAL 
 
 19. 
 
 
 
 
 
 
 
 
 
 
 
 Time 
 
 Rate 
 
 
 
 Dat 
 
 
 Name 
 
 or 
 
 or 
 
 For What Purpose 
 
 Amount 
 
 
 
 
 Quantity 
 
 Price 
 
 
 
 
 
 
 
 

 
 Results of Suggested Provisions 
 B. FORMS FOR USE IN THE BOARD'S OFFICE 
 
 1. Quotation Blank. 
 
 This blank should contain the following items : 
 
 a. Quantity. 
 
 b. Mataerial description. 
 
 c. List price. 
 
 d. Discount. 
 
 e. Net price. 
 
 Board of Education.... 
 
 145 
 
 .19. 
 
 (name of firm) 
 
 GENTLEMEN : 
 
 Please quote your lowest price on the items listed below: 
 Prices to include delivery F. O. B. 
 The right is reserved to reject any or all bids. 
 Give full description of articles quoted upon. 
 No charges will be allowed for boxing and crating. 
 Return this sheet promptly. 
 
 
 Quantity 
 
 Material 
 
 List Price 
 
 Discount 
 
 Net Price 
 
 1 
 
 
 
 
 
 
 I 
 
 
 
 
 
 
 I 
 
 
 
 
 
 
 J 
 
 
 
 
 
 
 i 
 
 
 
 

 
 146 Legislative Control of State Normal Schools 
 
 2. Purchasing Order. 
 
 The purchasing order is made out by the Board's purchasing 
 
 agent from the prices quoted by the various firms, 
 contain the following items: 
 
 a. General regulations for shipment. 
 
 b. Order number to be placed on all bills. 
 
 c. Name of firm. 
 
 d. Name of school. 
 
 It should 
 
 Purchasing Order 
 
 State Board of Education 
 Gentlemen : 
 
 Ship the following to 
 State Normal School 
 
 Terms F. O. R. 
 
 Route Via ... 
 
 Requisition No 
 
 (Put this No. on bill) 
 
 CONDITIONS: 
 Invoices must be made in du- 
 plicate, and accompanied by 
 sworn voucher. 
 
 No allowance for crating oi 
 cartage. 
 
 Prepay freight and add to 
 bill. 
 Place order No. on package. 
 
 Quantity 
 
 Description of Goods Ordered 
 
 Price 
 
 
 Amount 
 
 
 
 

 
 Results of Suggested Provisions 
 
 147 
 
 3. Appropriation Ledger Sheet. 
 
 For the Board's own use there should be an appropriation 
 ledger sheet upon which to record all appropriations and other 
 receipts; this should be so arranged that a balance could be 
 taken at any time, from which monthly balances could be 
 taken regularly. It should contain the amount appropriated by 
 the legislature, or the amount set aside by the Board for the 
 school's use, the total of previous audits, the amount from other 
 sources from which money is received, and the total amount 
 available. Each of these should be distributed under its proper 
 heading according to the classification outlined. 
 
 AVAILABLE BALANCES 
 
 STATE NORMAL SCHOOL 
 
 Account 
 No. 
 
 Account 
 
 Appropriated 
 Current Year 
 
 Previous 
 Audits 
 
 This 
 Audit 
 
 Available 
 Balance 
 
 
 I. 
 
 
 
 
 
 
 Capital Expenditure* 
 
 
 
 
 
 
 (List here the sub-head- 
 
 
 
 
 
 
 ing,.) 
 
 
 
 
 
 
 II. 
 
 
 
 
 
 
 Maintenance 
 
 
 
 
 
 
 (Sub. headings) 
 
 
 
 
 
 , 
 
 III. 
 
 
 
 
 
 
 OptratioB 
 
 
 
 
 
 
 ( Sab-heading*) 
 
 
 

 
 148 
 
 Legislative Control of State Normal Schools 
 
 4. Expense Ledger Sheet. 
 
 There should be an expense ledger sheet, or register of vouch- 
 ers as it may be called. There should be one for each of the 
 grand divisions of the plant ; that is, one for the normal proper, 
 one for the dormitory, one for the training school, one for the 
 administrative office, and one for teachers' institutes. It should 
 show the available appropriations, the number of vouchers, the 
 name of the payee, and the amount under its proper title of each 
 grand division. In order to save space only one is reproduced 
 here. 
 
 VOUCHER REGISTER 
 
 Credits 
 
 
 
 
 Debit* 
 
 
 Voucher 
 
 No. 
 
 Name of 
 Payee 
 
 
 Capital 
 
 Mainten- 
 ance 
 
 Operation 
 
 Appropriation* 
 
 Sundry 
 Appro. 
 
 
 
 
 
 
 
 Capital 
 
 Main- 
 tenance 
 
 Opera- 
 tion 
 
 
 
 
 
 
 Acct. 
 
 Amt. 
 
 Vertical col- 
 umns for each 
 sub-heading 
 
 Vertical col- 
 umns for each 
 sub-heading 
 
 
 
 
 
 
 
 
 
 
 

 
 Results of Suggested Provisions 
 
 149 
 
 5. Monthly Financial Statement. 
 
 A general balance sheet should be made by the bookkeeper 
 from the appropriation ledger sheet, and from this a monthly 
 statement made and sent to the principal of the school. It 
 should contain: 
 
 a. Statement of the available appropriations and collections. 
 
 b. Balances for the month just closed. 
 
 c. Receipts during the month. 
 
 d. Disbursements during the month. 
 
 e. Balances to be expended. 
 
 MONTHLY FINANCIAL STATEMENT 
 _ State Normal School 
 
 For the month of _ 19 
 
 Statement of current year, months remain unpaid. 
 
 Name of Fond 
 
 Balances 
 19... 
 
 Receipts 
 During 
 Month 
 
 Disbursements 
 During Month 
 
 Balance* 
 19... 
 
 Disbursements same 
 month last year 
 
 A. 
 
 
 
 
 
 
 Appropriation* 
 
 
 
 
 
 
 1. Capital 
 
 
 
 
 
 
 (Lil sub-head- 
 ing') 
 
 
 
 
 
 
 2. Maintenance 
 
 
 
 
 
 
 ( List sub-head- 
 ing..) 
 
 
 
 
 
 
 3. Operation 
 
 
 
 
 
 
 (List sub-head- 
 ings.) 
 
 
 
 
 
 
 B< 
 
 
 
 
 
 
 Fees Collected 
 
 
 
 
 
 
 (List sub-head* 
 ings.) 
 
 
 
 
 
 
 Totals 
 
 
 
 
 
 
 Outstanding 
 Bill* 
 
 
 
 
 
 
 State Auditors 
 
 
 
 
 
 
 BalaB.ce 
 
 
 
 
 
 
 
 
 
 

 
 150 Legislative Control of State Normal Schools 
 
 6. Unit Costs. 
 
 From the attendance report, the payrolls, and various ledgers, 
 a statement of unit costs per general classification may be made. 
 In a normal school we suggest that this statement be made an- 
 nually or semi-annually. 
 
 COST PER PUPIL 
 
 Nature of 
 Expense 
 
 This Month 
 Semester 
 Year 
 
 Last Month 
 Semester 
 Year 
 
 Ayerage 
 
 J 
 
 Sub.hea dings 
 of 
 Capital 
 
 
 
 
 g 
 
 I 
 
 _B 
 
 Sub-heading* 
 of 
 Maintenance 
 
 
 
 
 ! 
 
 Sub-headings 
 of 
 Operation 
 
 
 
 
 7. Unit Costs per Subject. 
 
 If the teachers' payroll is carefully made out, it is possible to 
 secure the cost per subject. To distribute the capital expendi- 
 ture, cost of maintenance, and certain operating expenditures 
 among the different subjects is a difficult matter. Probably 
 about the best that can be done is to make an apportionment of 
 such costs to the subjects, charging to the courses which require 
 laboratories and large supplies the cost of these items. 
 UNIT COST PER SUBJECT 
 
 Name 
 of 
 Subject 
 
 Inventory 
 of 
 Equipment 
 191 
 
 Equipment and 
 Supplies Pur- 
 chased 
 
 191... 
 
 Space Required 
 in Sq. Ft. Hours 
 Per Wk. in Use. 
 
 Teachers 
 
 Probable Distri- 
 bution of Over- 
 head Expense 
 
 No. 
 
 Hrs. 
 
 Salary 
 
 
 
 
 
 
 

 
 Results of Suggested Provisions 
 
 151 
 
 C. FORMS FOR THE BOARD'S ANNUAL REPORT 
 In addition to the educational features of the annual or bi- 
 ennial report, which are usually found, there should be certain 
 financial statements which will serve to inform the public con- 
 cerning the receipts and expenditures of the school. Such ta- 
 bles will furnish a basis for the public's decision regarding the 
 investment and returns of the school. 
 
 These tables should contain statements setting forth the kind 
 of normal school, i.e., whether it aims to prepare elementary 
 teachers, high school teachers, or both; whether it is being de- 
 veloped into a teachers' college, with courses paralleling univer- 
 sity courses; whether some students are pursuing teachers' 
 courses and some taking purely secondary courses. In order to 
 answer these and other questions it is recommended that a 
 statement be made and a table constructed from the cash 
 collected report on students' enrollment as per the following 
 form: 
 
 1. Statement of Kind of School and Purpose. 
 
 a. Verbal declaration as to the purpose of the school. 
 
 b. Name of course. 
 
 c. Number enrolled in course. 
 
 d. Amount received. 
 
 We, the members of the State Board of Education, hereby declare that 
 ....State Normal School aims to.... 
 
 Cash Collected From Enrollment 
 
 Name of Course 
 
 No. Enrolled 
 
 Totil 
 
 Amount Received 
 
 Boys 
 
 Girl* 
 
 Normal 
 
 
 
 
 
 Secondary 
 
 
 
 
 
 College 
 
 
 
 
 
 Training School 
 
 
 

 
 152 Legislative Control of State Normal Schools 
 
 2. Appropriations and Receipts from All Sources. 
 
 This table should be in summarized form, but should have 
 details sufficient to indicate the proper sources of all receipts, 
 a. Name of funds received from the state. 
 6. Name of funds received from fees. 
 c. Miscellaneous gifts, receipts from investments, etc. 
 
 APPROPRIATIONS AND RECEIPTS 
 
 RECEIVED FROM 
 
 AMOUNT 
 
 State Appropriations 
 Capital 
 
 
 
 
 Operation ... .... 
 
 
 Fees 
 
 
 
 
 
 
 Total ... 
 
 
 3. Record of Drafts for the Year. 
 
 This record will make it possible for the public to trace each 
 item of expenditure to its original source. It should include : 
 a. Date. d. For what object. 
 
 6. Number. e. Amount. 
 
 c. To whom paid. 
 
 RECORD OF DRAFTS FOR THE YEAR 
 
 Date 
 
 No. 
 
 To Whom Paid 
 
 For What Object 
 
 Amount 
 
 
 
 
 

 
 Results of Suggested Provisions 153 
 
 4. Summary of Expenditures. 
 
 There should be a summary of expenditures according to the 
 general classification suggested. These expenditures should be 
 summarized as per the following form : 
 
 a. Capital with the sub-headings. 
 
 b. Maintenance with the sub-headings. 
 
 c. Operation with the sub-headings. 
 
 SUMMARY OF EXPENDITURES 
 
 Nature of Expense 
 
 Current Year 
 
 Last Year 
 
 Average 
 
 } 
 
 Sub-Headings 
 of 
 
 
 
 
 
 Capita] 
 
 
 
 
 
 Total 
 
 
 
 
 1 
 
 Sub-Headings 
 of 
 
 
 
 
 5 
 
 Maintenance 
 
 
 
 
 
 Total 
 
 
 
 
 J 
 
 Sub-Headings 
 of 
 
 
 
 
 
 
 Operations 
 
 
 
 
 
 Total 
 
 
 
 
 GRAND 
 
 TOTAL 
 
 

 
 154 
 
 Legislative Control of State Normal Schools 
 
 5. Special Personal Service Record. 
 
 A personal service record may be made according to the fol- 
 lowing form: 
 
 PERSONAL SERVICE RECORD 
 
 Name of Person 
 Rendering Service 
 
 Description of Work 
 Done 
 
 Periods per Day 
 or Week 
 
 Rate 
 
 Salary 
 
 
 
 
 
 
 6. Enrollment and Graduation Records. 
 
 A. There are oftentimes many questions asked concerning the 
 enrollment of a school. If the forms herewith recommended are 
 used, many of these questions will be answered at sight. The 
 facts contained in such a record would contribute much in 
 answering questions as to the service rendered by the school to 
 the state. 
 
 ENROLLMENT AND GRADUATION RECORD 
 
 
 Number Enrolled 
 
 Number Graduated 
 
 Name of 
 Course 
 
 Current Year 
 
 Last Year 
 
 Current Year 
 
 Last Year 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Normal 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Secondary 
 
 
 
 
 
 
 
 
 
 
 
 
 
 College 
 
 
 
 
 
 
 
 
 
 
 
 
 
 Total 
 
 
 
 
 
 
 
 
 
 
 

 
 Results of Suggested Provisions 
 
 MAJOR LINES AND DEPARTMENTS 
 
 A. 
 
 a. Major lines of activities. 
 
 b. Number enrolled each term, semester, or quarter. 
 
 c. Total. 
 
 B. 
 
 a. Names of departments (subjects). 
 
 b. Number of courses. 
 
 c. Number of credits. 
 
 d. Gross enrollment. 
 
 155 
 
 FORM A 
 
 Major Lines 
 
 First Semester 
 
 Second Semester 
 
 Total 
 
 Kindergarten 
 
 
 
 
 Primary 
 
 
 
 
 Intermediate 
 
 
 
 
 Grammar 
 
 
 
 
 Secondary 
 
 
 
 
 Home EC. 
 
 
 
 
 Man'l Tr. 
 
 
 
 
 Agr. 
 
 
 
 
 Rural 
 
 
 
 
 Reviews and Sp. 
 
 
 
 
 Unclassified 
 
 
 * 
 
 
 FORM B 
 
 Departments 
 (Subjects) 
 
 First Semester 
 
 Second Semester 
 
 Total 
 
 Agriculture 
 
 
 
 
 Biology 
 
 
 
 
 Botany 
 
 
 
 
 &c. 
 
 

 
 156 
 
 Legislative Control of State Normal Schools 
 
 7. Graphs and Comparative Tables. 
 
 Since reports of state boards generally represent more than 
 one school, graphs and tables should be so clearly arranged that 
 the public may see at a glance the comparative costs and returns 
 of each school. Facts concerning enrollment, graduation and 
 instructional costs distributed as to departments, to clock hour 
 loads and to student clock hours, should be set forth. 
 
 A. 
 
 INSTRUCTIONAL COST PEE DEPARTMENT 
 
 Departments 
 
 Direct Charge 
 
 Overhead 
 
 Total 
 
 Agriculture 
 
 
 
 
 Biology 
 
 
 
 
 Botany 
 
 
 
 
 &c. 
 
 
 
 
 B. STUDENTS CLOCK HOUR LOAD 
 
 Departments 
 
 Direct Charge 
 
 Overhead 
 
 Total 
 
 Agriculture 
 
 
 
 
 Biology 
 
 
 
 
 Botany 
 
 
 
 
 &c. 
 
 
 
 
 C. COST PER STUDENT CLOCK HOUR 
 
 Departments 
 
 Department Coats 
 
 Student Clock Hours 
 
 Cost Per 
 Student 
 
 
 
 
 Clock Hour 
 
 
 

 
 Results of Suggested Provisions 157 
 
 By the use of the above forms, which have been derived from 
 an extensive study of forms now in use, and which have been 
 constructed in harmony with the foregoing principles of clas- 
 sification, it is believed that there will be an original document 
 for each transaction, that responsibility for the expenditure of 
 appropriated funds may be fixed, and that the public will be 
 able to judge whether it is receiving proper returns on its 
 investment. There will also be facts for measuring the ex- 
 penditures and returns of the schools represented in the re- 
 port of any board, and of the schools of similar kind wherever 
 they may be found.
 
 APPENDIX A 
 TYPE REPORTS 
 
 In this appendix will be found tables, or parts of tables, taken 
 from the annual or biennial reports of state normal school 
 boards. They represent the boards' statements to the public of 
 the receipts and disbursements of the schools. As far as I have 
 been able to find these are the only available financial statistics 
 of the schools. Copies of such reports have been collected from 
 practically every state in the union, and from different schools 
 within the same state. The parts given below are intended to 
 show the form of financial statement. 
 
 TYPE No. 1 
 
 Type No. 1 is a type of financial report published by many 
 normal school boards. 
 
 RECEIPTS 
 
 Balance as per report to General Assembly $ 13,080.47 
 
 Maintenance 128,124.99 
 
 Incidental fees 12,066.50 
 
 Other fees and resources follow, making a total of..$258,023.75 
 
 EXPENDITURES 
 
 .Contingent fund $ 6,632.92 
 
 Salaries, faculty, superintendent, engineers, etc 94,579.71 
 
 General repairs and improvements 2,220.31 
 
 Balance 48,784.66 
 
 TYPE No. 2 
 
 In Type No. 2 receipts and expenditures are listed un- 
 der four different headings, viz., interest and income, mill tax, 
 local fund, and appropriations. Since no summary is given a 
 great amount of adding is necessary before even the total re- 
 ceipts and expenditures can be found. Parts of the same bill are 
 paid from different funds, a fact which makes necessary a 
 reading of the entire report to find the total amount of the 
 bill in question. A list of the checks issued is given, 
 together with the number, date, to whom paid, and the
 
 Type Reports 159 
 
 amount; nothing is said about what the check was issued for. 
 So far as real information is concerned this report covering 
 twenty pages might as well be omitted. 
 
 TYPE No. 2 
 
 INTEREST AND INCOME 
 Receipts 
 
 Balance June 30, 1910 _ $9,112.03 
 
 Warrants, June, 1920 1,853.89 
 
 (seven other items follow) 
 
 Expenditures 
 
 Library and reading room $315.08 
 
 Textbooks 658.40 
 
 (fourteen other items) 
 
 MILL TAX 
 Eeceipts 
 
 Balance June 30, 1910 _ $30,765.32 
 
 Warrants, June, 1910 486.92 
 
 Expenditures 
 
 Salaries $58,274.82 
 
 Library and reading room ~ 238.41 
 
 LOCAL FUND 
 
 Eeceipts 
 
 Balance June 30, 1910 $18,855.17 
 
 Registration fees 2,395.25 
 
 Expenditures 
 
 Boarding department $25,613.01 
 
 Incidentals - 14,941.86 
 
 APPROPRIATIONS 
 
 Eeceipts 
 
 Students ' hospital $10,000.00 
 
 Reimbursements ..._ - - 9,399.31 
 
 Total (including six other items) 31,899.31 
 
 Expenditures 
 
 Students' hospital $ 9,957.00 
 
 Reimbursements - .....9,399.31 
 
 (seven other general items) 
 
 CHECKS 
 
 No. Date To whom paid 
 
 4116 7/8/1910 John Doe 1.20
 
 160 Legislative Control of State Normal Schools 
 
 TYPE No. 3 
 
 Type No. 3 seems complete, but it is found upon more care- 
 ful examination to show very little about where the money 
 really goes. First, there is a general statement of balances, the 
 amount received from the state treasurer, the total disburse- 
 ments and the final balances. These are given under ten differ- 
 ent headings with no final summary. Here again one must do 
 considerable adding to find the grand total of receipts and 
 expenditures. To find the expenditure for any one thing would 
 require a great amount of time. The disbursements for salaries 
 of officers and teachers are clear, yet nothing is given to indicate 
 the service that each performs. 
 
 DISBURSEMENTS FOR SALARIES OF OFFICERS AND TEACHERS 
 
 John Doe $7,759.00 
 
 (Names of all employees follow) 
 
 FOR SCIENCE APPLIANCE AND SUPPLIES 
 
 Jan. 1, 1911. Balance on hand $ .68 
 
 Received from state treasurer 6,115.00 
 
 Disbursements 6,155.58 
 
 Dec. 31, 1913. Balance due treasurer _ 39.90 
 
 (Same general statement for ten items) 
 
 TYPE No. 4 
 
 Type No. 4 is a form of condensed report and is fairly clear. 
 It is given in a report with other normal schools and there is a 
 slight opportunity for comparison of expenditures, though no 
 comparison is made. 
 
 RECEIPTS 
 (Statement of income from several different sources) 
 
 CLASSIFIED EXPENDITURES 
 
 Current expenses: 1910-11 1911-12 
 
 Salaries $12,598.11 $51,963.50 Total 
 
 (Other items as furniture, telephone, etc.) 
 
 TYPE No. 5 
 
 Type No. 5 shows a feature not shown by the others re- 
 ferred to in that it gives the number of pupils enrolled. An 
 opportunity is thereby given for a per capita cost calculation,
 
 Type Reports 161 
 
 but the report does not attempt such calculation. The receipts 
 and expenditures are given in such a condensed form that the 
 tables are practically worthless and furnish little information 
 valuable to anyone. 
 
 Enrollment regular session First year Second year etc. 
 " Summer Session " " '< " " 
 
 RECEIPTS, (STATE APPROPRIATIONS) 
 
 1910-11 1911-12 
 Received from state $39,000 $51,000 
 
 EXPENDITURES, (STATE APPROPRIATIONS) 
 
 Support and maintenance, salaries $25,400 $36,693 
 
 Salaries of teachers of indus. subjects 4,050 3,000 
 
 Books, apparatus, equipment, repairs, and 
 
 improvements 3,000 3,000 
 
 TYPE No. 6 
 
 Type No. 6 shows in detail the receipts of the school under 
 date of each receipt, number, of whom received, amount, and 
 total. The checks for each expenditure are listed as in Type 
 2, with the addition of the object for which the check was 
 given. This information should exist in the office of the board, 
 but it is questionable whether it should have the space in the 
 report. No advantage is taken of the opportunity the data fur- 
 nish for statements of unit costs. 
 
 RECEIPTS 
 
 August 19, 1910 995 Interest on land grant....$12,083.33 
 
 (All receipts follow in like form) 
 
 EXPENDITURES 
 July 29, 1910 11631 John Doe....extra labor $91.14 
 
 TYPE No. 7 
 
 Type No. 7 gives a report on eight schools for a biennium. 
 Each school is listed separately, the students are classified ac- 
 cording to kind and grade, and the number of graduates given 
 for each school year. It is fairly condensed for the receipts 
 and expenditures are given including teachers and employees. 
 In the report, however, nothing is made of the opportunity for 
 comparisons.
 
 162 Legislative Control of State Normal Schools 
 
 ENROLLMENT 
 
 School 381 normal 44 grammar, etc. 
 
 (eight schools are listed) 
 
 Graduates 212 total (detail classification) 
 
 (eight other schools listed) 
 
 RECEIPTS 
 
 Interest on land certificates $61.04 $70.55 
 
 EXPENDITURES 
 Salaries, etc _ $41,270.00 etc. 
 
 TYPE No. 8 
 
 The report from which Type No. 8 was taken contains the 
 financial statements of six normal schools and twenty-eight 
 other state institutions. The income is given, the enrollment, 
 pay roll of teachers and employees, and a classification of ex- 
 penditures as shown by the table. The distinctive feature of 
 this type is the attempt made to calculate the per capita ex- 
 penditure, and to furnish a basis for comparison among the 
 schools of the state. This type omits some of the good fea- 
 tures found in Type No. 7. 
 
 BIENNIAL REPORT OF STATE BOARD 
 
 Per Per 
 
 For What Expended 1911 capita 1912 capita 
 
 Salaries regular _...$12,670.65 $58.12 $12,613.33 $54.84 
 
 Salaries, extra 341.71 1.57 519.24 2.26 
 
 Labor 49.57 .23 164.45 .71 
 
 Traveling expenses 64.60 .29 146.07 .63 
 
 (fifty-five other items follow) 
 
 From the many reports which the writer has collected and ex- 
 amined, of which the eight described are types, it is evident that 
 these reports are far from being clear to the average business 
 man to say nothing of the average citizen. As a rule, they give 
 but little information concerning the efficiency of the school, the 
 exact expenditures, and show less regarding the returns which 
 the public is getting upon its investment. There is no uniform- 
 ity among the states, and in only a few cases is there uniform- 
 ity among the schools of the same state. These deficiencies make 
 it difficult for the public to draw safe conclusions as to real 
 needs of state normal schools or their actual value.
 
 APPENDIX B 
 COMPARATIVE COSTS 
 
 When the writer first conceived the idea of making a study of 
 normal schools it was with reference to unit costs and other 
 problems relating to finances. Only a little thought and inves- 
 tigation were given to that until it became evident that such a 
 study was not possible because the proper data could not be 
 secured ; upon further investigation it was found that such data 
 did not exist to any great extent in these institutions. Scraps of 
 what seemed to be comparable upon first examination were col- 
 lected, but these proved to be useless for all practical purposes. 
 
 It was readily seen that the chief difficulty in dealing with 
 what was available was found to be the lack of classification. 
 For example, "athletics" and "gymnasium" are by no means 
 synonymous terms as a title for all items of expenditure relat- 
 ing to this school activity. Items given in a report under the 
 title of "gymnasium" may be for repairs and improvements 
 on the gymnasium, for equipment, for athletic exercises in the 
 gymnasium, or for two or more of these. Likewise, "salaries" 
 is not synonymous with "faculty"; "salaries" probably in- 
 cludes all who were employed in the institution, but there was 
 nothing in these reports to assure one of this. Item "expendi- 
 tures for departments" cannot be interpreted by any one not 
 familiar with the particular institution for which the report 
 was made; also, "improvements" is such a general title that 
 almost any kind of expenditure may be classified under it. 
 "Postage," "printing," and "advertising" may be for the ex- 
 ecutive office, for the catalog, or for general advertising. Under 
 "miscellaneous," "incidental" and "special" all manner of ex- 
 penditures are found. Such titles for expenditures are abso- 
 lutely unintelligible to the public; it may be impossible to get 
 along without such a title in a report, yet if the total expendi- 
 tures thus classified amount to a large sum it should be taken 
 as evidence of careless accounting.
 
 164 Legislative Control of State Normal Schools 
 
 The exhibits given in this Appendix are not given for any 
 value they have in themselves, but merely to indicate a few 
 things which might be done if statistics were available, as sug- 
 gested in Chapter IV of this study. The writer has had to do 
 a great deal of reclassifying and interpreting in order to make 
 the items seem at all comparable. 
 
 If the statistics were accurate, and the results were as they 
 are shown to be by these tables, it is safe to say that in many 
 instances normal school administrators would find more effi- 
 cient ways of conducting their institutions. For example, in 
 one state the median expenditure per capita for salaries, wages, 
 and labor, is $134.85, while in another state it is $60.71, or less 
 than half the former sum. (Exhibit I) A still greater difference 
 is seen between these two states in the total expenditures per 
 capita. A marked similarity holds among the different schools 
 of the same state, yet in some cases there is sufficient variability 
 to require investigation by those in charge. In Exhibit III 
 school "West Liberty" is $15.08 above the state's median ex- 
 penditure for salaries, wages and labor, while school "Marshall" 
 is $15.03 below the median. The explanation for this is that 
 West Liberty is a school with fair equipment, but has a small 
 attendance due to its location ; while Marshall has a much larger 
 enrollment. Question: Can a state afford to continue small 
 schools in isolated communities? In Exhibit IV, however, it is 
 found that even this small school falls below the median for 
 the three states in respect to this item of expenditure. 
 
 The difference in the state medians, and the large variability 
 of expenditures among the schools, cannot all be explained upon 
 the point of enrollment. Some normals are content to be schools 
 for the training of elementary teachers; others are largely sec- 
 ondary schools with courses paralleling the high school courses, 
 and giving very little professional training; still others are 
 training high school teachers, while some are trying to rival col- 
 leges and state universities. All these ideals affect the cost of 
 maintenance, and must be known before a fair comparison of 
 expenditures can be made. 
 
 Exhibit V is a brief outline of the work of the Joint Board of 
 Higher Curricula of the State of Washington. This board, as
 
 Comparative Costs 
 
 165 
 
 EXHIBIT I 
 
 EXPENDITURES PER CAPITA 
 
 
 Salaries 
 Wages 
 and 
 Labor 
 
 Fur- 
 nish- 
 ings 
 
 Heat 
 Light 
 and 
 Power 
 
 Rep' rs 
 and 
 Im- 
 prove- 
 ments 
 
 Gr'ds 
 
 Sup- 
 plies 
 Norm'l 
 School 
 
 Sup- 
 plies 
 Tr'g 
 School 
 
 Sup- 
 plies 
 Office 
 
 Misc. 
 
 Total 
 
 Expense 
 
 Bridgewater . . ... 
 
 $135.33 
 180.03 
 130.39 
 166.63 
 177.92 
 203..09 
 121.58 
 134.38 
 127.10 
 128.06 
 
 $ 5.84 
 4.03 
 3.33 
 3.43 
 4.46 
 6.25 
 3.20 
 4.31 
 13.76 
 88 
 
 $21.44 
 18.80 
 14.90 
 17.03 
 6.99 
 34.70 
 7.81 
 22.34 
 8.39 
 5 03 
 
 $3.33 
 20.26 
 17.45 
 57.88 
 6.45 
 28.70 
 7.99 
 17.77 
 16.04 
 1 78 
 
 $ .78 
 
 2.69 
 1.48 
 1.40 
 1.93 
 3.35 
 1.37 
 .57 
 1.61 
 
 $ 7.30 
 7.38 
 9.19 
 9.39 
 13.31 
 13.38 
 8.79 
 12.81 
 13.03 
 3 05 
 
 $ 2.20 
 5.52 
 .49 
 .41 
 9.46 
 4.01 
 5.04 
 1.08 
 .72 
 
 $ 3.62 
 3.31 
 3.49 
 4.20 
 3.03 
 3.74 
 3.72 
 4.57 
 7.73 
 2.30 
 3.67 
 
 $ 2.68 
 4.74 
 2.81 
 6.31 
 6.39 
 8.43 
 5.68 
 4.00 
 7.00 
 3.48 
 5.20 
 
 $194.50 
 248.03 
 270.25 
 270.75 
 229.87 
 308.23 
 135.58 
 202.86 
 195.77 
 143.58 
 199.31 
 
 Fit hburg 
 Framingham 
 
 Hyannia 
 
 LowelL 
 
 No. Adams 
 
 S&lem 
 
 Westfield _ 
 
 Worcester 
 
 Normal Art . 
 
 Median 
 
 134.85 
 
 4.17 
 
 15.96 
 
 16.74 
 
 1.49 
 
 9.29 
 
 2.20 
 
 
 Athens 
 
 60.09 
 
 10.05 
 
 5.40 
 
 6.28 
 
 
 3.24 
 
 
 1.07 
 1.49 
 1.32 
 .81 
 1.07 
 1.34 
 1.19 
 
 6.21 
 3.22 
 8.16 
 3.61 
 3.86 
 5.43 
 4.64 
 
 99.73 
 72.38 
 80.30 
 87.80 
 100.32 
 62.72 
 84.05 
 
 Shepherdstown 
 
 61.34 
 
 .66 
 
 1.16 
 
 6 44 
 
 
 3.54 
 
 
 Glenville 
 
 51.99 
 
 .49 
 
 1.96 
 
 .22 
 
 
 2.20 
 
 
 West Liberty 
 
 75.79 
 67.31 
 
 .09 
 .16 
 
 3.32 
 4.06 
 
 .63 
 .21 
 
 
 .40 
 
 
 Fairmont 
 
 
 1.69 
 
 
 Marshall 
 
 45 68 
 
 45 
 
 3 17 
 
 2 49 
 
 
 69 
 
 
 Median 
 
 60.71 
 
 .47 
 
 3 24 
 
 1 56 
 
 
 1 94 
 
 
 
 
 
 
 
 
 
 
 La Crosse_ _ 
 
 81.46 
 
 2.53 
 
 9.71 
 
 5.06 
 
 14.67 
 
 3.13 
 
 
 .69 
 .70 
 .60 
 .44 
 .60 
 .52 
 .22 
 .39 
 .52 
 
 9.23 
 6.80 
 6.16 
 6.28 
 3.54 
 11.54 
 6.90 
 7.23 
 6.35 
 
 86.34 
 61.60 
 77.23 
 81.23 
 92.90 
 117.96 
 132.26 
 113.62 
 89.62 
 
 Mikwaukec 
 
 60.80 
 75.60 
 
 4.36 
 .73 
 
 3.72 
 5 66 
 
 1.00 
 1 62 
 
 1.09 
 16 85 
 
 .96 
 2.34 
 
 
 
 Oshkofih 
 
 Platteville 
 
 80.28 
 74.04 
 
 1.69 
 1.16 
 
 7.51 
 4 11 
 
 1.21 
 1 27 
 
 9.67 
 1 04 
 
 2.37 
 2 82 
 
 
 
 River Falls.. 
 
 Stevens Pt. 
 
 90.46 
 66.30 
 83.32 
 77.94 
 
 .77 
 3.71 
 4.89 
 2.11 
 
 7.25 
 4.23 
 6.37 
 6.01 
 
 2.36 
 1.29 
 2.47 
 1.49 
 
 .56 
 14.19 
 .39 
 5.38 
 
 3.59 
 2.77 
 1.40 
 2.57 
 
 HZ 
 
 Superior 
 
 Whitewater 
 
 Median 
 
 EXHIBIT II 
 
 MEDIANS FOR THE THREE STATES REPRESENTERFD BY 24 SCHOOLS 
 
 Salaries 
 Wages 
 and 
 Labor 
 
 Fur- 
 nishings 
 
 Heat 
 Light 
 Power 
 
 Repairs 
 and 
 Improve- 
 ments 
 
 Grounds 
 
 Sup- 
 plies 
 
 Normal 
 School 
 
 Sup- 
 plies 
 Training 
 School 
 
 Supplies 
 Office 
 
 Miscel 
 
 Total 
 
 $82.39 
 
 $3.26 
 
 $6.68 
 
 $3.77 
 
 $1.48 
 
 $3.18 
 
 $2.20 
 
 $1.33 
 
 $6.18 
 
 $115 75
 
 166 
 
 Legislative Control of State Normal Schools 
 
 EXHIBIT III 
 
 SHOWING EACH SCHOOL'S DEVIATION FROM THE MEDIAN OF THE STATE IN WHICH IT 
 
 IS LOCATED 
 
 
 Salaries 
 Wages 
 and 
 Labor 
 
 Fur- 
 nish- 
 ings 
 
 Heat 
 Light 
 and 
 Power 
 
 Rep'rs 
 and 
 Im- 
 prove- 
 ments 
 
 Gr'ds 
 
 Sup- 
 plies 
 Norm'l 
 School 
 
 Sup- 
 plies 
 Tr'g 
 School 
 
 Sup- 
 plies 
 Office 
 
 Misc. 
 
 Total 
 Expense 
 
 
 $ 0.58 
 45.18 
 4.46 
 21.78 
 43.07 
 68.24 
 13.27 
 .47 
 
 S 1.67 
 .14 
 .83 
 .74 
 .29 
 1.08 
 .97 
 .14 
 
 $ 5.48 
 2.48 
 1.06 
 1.07 
 8.97 
 18.74 
 8.15 
 6.38 
 
 $3.41 
 3.52 
 .71 
 41.14 
 10.29 
 11.96 
 8.75 
 1.03 
 
 f .71 
 
 1.20 
 .01 
 .00 
 .45 
 1.86 
 .12 
 .92 
 
 $ 1.99 
 1.91 
 .10 
 .10 
 
 4.02 
 4.09 
 .50 
 3.42 
 
 $ .00 
 
 3.31 
 1.79 
 1.79 
 7.27 
 1.81 
 2.85 
 1.12 
 
 $ .05 
 
 3.6 
 .18 
 .53 
 .64 
 .07 
 .05 
 .90 
 
 $ 2.53 
 .47 
 2.40 
 1.10 
 1.18 
 3.42 
 .47 
 1 14 
 
 $ 4.72 
 48.72 
 14.56 
 70.94 
 30.56 
 108.92 
 53.75 
 3 53 
 
 Fitchburg 
 
 Hyannis 
 
 North AHftms 
 
 Salem. 
 Westfield 
 
 Worcester _. 
 
 7.75 
 6.79 
 
 9.59 
 3.29 
 
 7.57 
 10.93 
 
 .70 
 14.96 
 
 .12 
 
 3.74 
 6.24 
 
 1.52 
 
 4.06 
 1.36 
 
 .12 
 .30 
 .13 
 
 .38 
 
 1.99 
 1.87 
 
 1.60 
 1.44 
 3.52 
 99 
 
 3.54 
 55.73 
 
 15.68 
 5.60 
 3.75 
 3.75 
 16.27 
 23.33 
 
 21.65 
 28.02 
 12.39 
 8 39 
 
 Nnnpal Art -,, .,, . 
 
 Athens 
 
 .62 
 
 9.58 
 
 2.16 
 
 4.72 
 
 
 1 30 
 
 
 Shepherdstown 
 Glenville.. 
 
 West Liberty 
 
 .63 
 8.72 
 15.08 
 
 .19 
 .02 
 .38 
 
 2.08 
 1.28 
 .18 
 
 4.88 
 1.34 
 .93 
 
 
 1.60 
 
 
 
 
 .26 
 1.54 
 
 
 Fairmont _. 
 
 6.60 
 
 .31 
 
 .82 
 
 1.35 
 
 
 25 
 
 
 .12 
 .15 
 
 .17 
 .18 
 .08 
 .00 
 
 .78 
 .79 
 
 2.38 
 .05 
 .72 
 55 
 
 Marshall 
 
 15.03 
 
 .02 
 
 .07 
 
 .93 
 
 
 1.25 
 
 
 La Crosse ... . _. 
 
 3.52 
 
 .42 
 
 3.70 
 
 3.61 
 
 9 29 
 
 56 
 
 
 Milwaukee 
 
 17.14 
 
 2.25 
 
 2.29 
 
 .45 
 
 4.20 
 
 1.61 
 
 
 Oshkosh . . 
 
 2.34 
 
 1.38 
 
 .35 
 
 .17 
 
 11.47 
 
 23 
 
 
 Platteville 
 
 2.34 
 
 .42 
 
 1.50 
 
 .24 
 
 4.29 
 
 .20 
 
 
 River Falls 
 
 3.90 
 
 .95 
 
 1.90 
 
 .18 
 
 4 34 
 
 .25 
 
 
 .14 
 .00 
 
 3.31 
 4 69 
 
 3.28 
 28 28 
 
 Stevens Point 
 
 12.52 
 
 1.34 
 
 1.24 
 
 .91 
 
 4.82 
 
 1.02 
 
 
 Superior 
 
 11.64 
 
 1.60 
 
 1.78 
 
 .16 
 
 8.81 
 
 .20 
 
 
 .30 
 .13 
 
 .05 
 .43 
 
 42.64 
 24.00 
 
 Whitewater 
 
 5.38 
 
 2.78 
 
 .36 
 
 1.02 
 
 4.99 
 
 1.16 
 
 
 EXHIBIT IV 
 SHOWING EACH SCHOOL'S DEVIATION FROM THE MEDIAN OF THE THREE STATES 
 
 
 Salaries 
 Wages 
 and 
 Labor 
 
 Fur- 
 nish- 
 ings 
 
 Heat 
 Light 
 and 
 Power 
 
 Rep'rs 
 and 
 Im- 
 prove- 
 ments 
 
 Gr'ds 
 
 Sup- 
 plies 
 Norm'l 
 School 
 
 Sup- 
 plies 
 Tr'g 
 School 
 
 Sup- 
 plies 
 Office 
 
 Misc. 
 
 Total 
 Expense 
 
 Bridgewater _ 
 
 $ 52.94 
 97.64 
 48.00 
 84.24 
 95.53 
 120.70 
 39.19 
 51.99 
 44.71 
 45 67 
 
 $ 2.58 
 
 .77 
 .07 
 .17 
 1.20 
 2.99 
 .06 
 1.05 
 10.70 
 2 38 
 
 $14.76 
 12.12 
 8.22 
 10.35 
 .31 
 28.02 
 1.13 
 12.66 
 1.71 
 1 65 
 
 S 9.56 
 16.49 
 13.48 
 54.11 
 2.68 
 24.92 
 4.22 
 14.00 
 12.27 
 1 99 
 
 $ .70 
 
 1.21 
 .00 
 .01 
 .45 
 1.87 
 .11 
 .91 
 .13 
 
 S 4.12 
 4.20 
 6.01 
 6.21 
 10.31 
 13.20 
 5.61 
 9.63 
 12.85 
 .13 
 
 $ .00 
 3.31 
 1.91 
 1.79 
 7.26 
 1.81 
 2.84 
 1.12 
 1.48 
 
 $ 2.29 
 1.98 
 2.16 
 2.87 
 1.70 
 2.41 
 2.39 
 3.24 
 6.40 
 .97 
 
 .26 
 .16 
 .01 
 .52 
 .26 
 .01 
 
 .64 
 .63 
 .70 
 .89 
 
 $ 3.50 
 1.44 
 3.37 
 .13 
 .21 
 2.45 
 .50 
 2.11 
 1.02 
 2.70 
 
 .06 
 2.98 
 1.98 
 2.53 
 2.32 
 .75 
 
 3.05 
 .62 
 .05 
 ..10 
 
 $ 78.84 
 132.28 
 69.00 
 154.50 
 114.12 
 192.43 
 19.88 
 87.11 
 80.02 
 27.83 
 
 16.02 
 37.39 
 35.45 
 27.95 
 15.43 
 53.03 
 
 29.41 
 53.15 
 38.52 
 34.52 
 22.85 
 2.25 
 16.51 
 2.13 
 
 Fitchgurg 
 
 Framingham 
 
 Hyannis 
 Lowell .. 
 
 Salem 
 Westneld 
 Worcester 
 
 Normal Art 
 
 Athens 
 
 22.30 
 
 6.79 
 
 1.28 
 
 2.51 
 
 
 .06 
 
 
 Shepherdstown. _ 
 
 21.05 
 
 2.60 
 
 5.52 
 
 2.67 
 
 
 .36 
 
 
 Glenville 
 Wit. T,ihrty 
 
 30.40 
 6 30 
 
 2.77 
 3 17 
 
 4.72 
 3 36 
 
 3.55 
 3 14 
 
 
 .98 
 
 
 
 2.78 
 
 
 Fairmont 
 
 MarphftH 
 
 15.08 
 36.71 
 
 3.10 
 2.81 
 
 2.62 
 3.51 
 
 3.56 
 1.28 
 
 
 1.49 
 
 
 
 2.49 
 
 
 La Crosse 
 
 .93 
 
 .73 
 
 3 93 
 
 1.29 
 
 13.19 
 
 .05 
 
 
 Milwaukee 
 
 Oshkosh. 
 
 21.59 
 6.79 
 2.11 
 
 1.10 
 2.73 
 1.57 
 
 2.96 
 1.02 
 .83 
 
 2.77 
 2.15 
 2.56 
 
 .39 
 15.37 
 8.19 
 
 2.22 
 .84 
 .81 
 
 
 
 Platteville ... _ 
 
 River Falls 
 
 Stevens Pt 
 
 8.35 
 3 07 
 
 2.10 
 2 49 
 
 2.57 
 57 
 
 2.50 
 1 41 
 
 .40 
 .98 
 
 .36 
 .41 
 
 
 
 .67 
 .81 
 1.11 
 .94 
 
 2.54 
 5.36 
 .72 
 1.10 
 
 Superior ,,,,,, 
 
 16.09 
 .93 
 
 .45 
 1.63 
 
 2.45 
 .31 
 
 2.48 
 1.30 
 
 12.71 
 1.09 
 
 .41 
 1.77 
 
 
 
 Whitewater... . _
 
 Comparative Costs 167 
 
 may be seen in graph "Washington," page 76, is made up of 
 the president of the University of Washington, two regents of 
 that university, the president of the State College of Washing- 
 ton, two regents of the college, the president of one of the state 
 normal schools, and one trustee from each of the boards of 
 trustees of the other two normal schools. The purpose of the 
 Joint Board is to consider matters of efficiency and economy in 
 the administration of the institutions represented. This is by 
 far the most significant report found in this investigation, and 
 is recommended to boards controlling state normal schools and 
 other teacher training agencies. 2 
 
 The statistical reports are given under the following headings : 
 I. Income, receipts and expenditures. (For each institution 
 
 concerned. ) 
 
 Table 1. Sources of income. 
 
 Table 2. Summary of receipts and expenditures. 
 II. General and claass census enrollments. 
 Table 3. General census enrollments. 
 Table 4. Class census enrollment. 
 
 III. Cost of instruction regular academic year. 
 
 Table 5. Instructional cost distributed to departments. 
 Table 6. Student clock hour load. 
 Table 7. Cost per student clock hour. 
 Table 8. Yearly cost per major student. 
 
 IV. Cost of instruction summer session. 
 
 Table 9. Regular academic year and summer session 
 
 compared. 
 V. Classified expenditures. 
 
 Table 10. Individual institutions, 
 on pages 168 and 169 of this study. 
 
 'The First Biennial Report of the Joint Board of Higher Curricula for 
 the State of Washington.
 
 168 
 
 Legislative Control of State Normal Schools 
 
 EXHIBIT V 
 
 COMPARATIVE TABLE 5-b INSTRUCTIONAL COST DISTRIBUTED TO DEPARTMENTS, NORMAL SCHOOLS, 1917-18 
 
 "1 
 
 o| 
 
 H 
 
 s?s 
 
 
 ire 
 
 *- 1 OO O !> ire COCM* <> lOOlCt^iCt^ 
 
 SS3SS 
 
 OCO CO 
 
 o 
 
 i 
 
 ift 
 
 S5 
 
 ~, 
 
 s 
 
 OTfOSOTCM CMCOOo"' 
 
 ;lss 
 
 ssili 
 
 r. 
 
 CC 
 
 OO 
 
 ' 7 S 
 
 
 
 :* 
 
 00 
 
 t^iC^F-<iOCs|^C4OOC^tDOOOOI 
 CO C^ ^H O< 
 
 ~ C 
 
 [ ~ 
 
 CO 1C 00 t~ 
 
 
 
 "0 tM 
 
 ELLENSBURG 
 
 Total Cost 
 
 CM 00 
 1CCO 
 
 OOO 
 
 
 CO 
 
 R2 i 
 
 22 
 
 J^ 
 
 o : 
 
 S ico 
 
 CD 
 
 S 
 
 l~ 
 I 
 
 M 
 
 : 
 
 
 
 1 
 
 I 
 
 
 OS 
 
 Soo ' 
 
 O CM 
 O CM 
 P01C 
 
 i 
 
 CO 
 
 
 Is ii 
 
 10 
 
 
 * 
 
 COCM ' 
 
 "* 
 
 CM 
 
 10 
 
 
 CO 
 
 10 12 
 
 i 
 
 Overhead 
 
 05-SS5 
 
 
 o 
 
 s < 
 
 3S & 
 QCO 
 
 5 
 
 CO 
 
 
 CO : 1C 
 
 | 
 
 00 
 CO 
 
 o_ 
 M 
 
 G 
 
 5 
 
 i 
 
 
 CM 
 
 1C tj< ' 
 OS^OO C 
 
 -OS 
 O CO 
 
 OO 
 
 ! 
 
 
 Ij 
 
 a 
 
 CO 
 
 CO !O 
 
 S: ic 
 i^l 
 
 CM ICO 
 
 11 
 
 CM1COCM 
 
 
 S3 
 
 25: 
 
 * 1C 
 
 o 
 
 CO 
 
 s 
 
 
 
 
 
 f~ :* 
 
 s 
 
 >0 
 
 00-J<COOOS 
 CM CO CM 
 
 
 
 
 00 
 *co 
 
 ceo 
 
 OO 
 CM 
 
 1 
 
 
 T ire i o 
 
 CHENEY 
 
 Total Cost 
 
 CM 
 OS 
 
 
 N 
 
 00 
 
 \2 
 
 ire 
 
 8 
 
 ScoScc 
 
 
 -I O 
 
 -ire-* 
 
 cow 
 
 g 
 
 
 OS CO 
 
 
 on co 
 
 00 
 
 OO 
 CM 
 
 c? 
 
 2 
 
 S 
 
 OCM 
 
 COiC 
 OOCM 
 
 
 
 ire 
 
 
 
 co 
 
 rs 
 
 
 35 
 
 <l 
 
 
 OS CM 
 
 ^.CM 
 
 01 
 
 ** 
 
 M 
 
 COrr^CM 
 
 1 
 
 ** 
 
 (N 
 
 
 CM 00 
 
 Overhead 
 
 o 
 CM 
 
 
 COCO 
 
 oo 
 
 OS 
 
 s 
 
 
 
 
 
 ^ 
 
 1C O 1C 1C 
 
 CM CO CO CO 
 
 
 S3 
 
 
 
 
 OO 
 
 I 
 
 1C 00 
 1C CO 
 
 
 1C CO 
 CO 1C 
 
 OOS 
 
 c 
 
 g 
 
 S 
 
 CC O ^f 1C 
 
 
 Sis 
 
 2 
 
 CO 
 
 CM IN 
 
 
 1C 1C 
 
 CM 
 
 
 
 * 
 
 " 
 
 CM CM 
 
 
 -I-- 
 
 gg> 
 
 Bfl 
 
 2S 
 
 
 O 1 
 
 coco 
 
 So 
 
 i 
 
 ire 
 
 
 
 Icooo 
 
 WCftO 
 
 85 
 
 
 
 SOD 
 
 
 coco 
 
 S3 
 
 1 
 
 f 
 
 
 
 Is 
 
 5 OO 1C 
 
 20SO 
 5CD-9I 
 
 . 
 
 r^ co o 
 
 IS 
 
 CM CM 
 
 
 
 
 *. 
 
 -- 
 
 
 " 
 
 r* 
 
 ^.-CM- 
 
 , 
 
 -CM- 
 
 rt 2 
 
 i 
 
 BELLINGHAM 
 
 Total Cost 
 
 O 1C O OO 1C 
 
 t- CO OS CO 
 
 f-OCM 
 
 
 
 S 
 
 gsssss 
 
 1C 
 
 ss 
 
 CO 
 
 - 
 
 g 
 
 o 
 
 00 * 
 
 sss 
 
 OS CO 
 
 
 
 S 
 
 i 
 
 rJH 
 
 "- 
 
 1C 1C 
 
 1C CO 
 33 I 
 
 1 
 
 CS 
 
 i 
 
 "I 
 
 CO 
 
 ?"***"** 
 
 
 
 * 
 
 CO 
 
 CO CO CO'* 
 
 CO 
 
 10-* 
 
 Overhead 
 
 o5 
 
 f 
 c^ 
 
 oc 
 
 IT 
 
 CD 
 
 c?S 
 
 
 
 s 
 
 s 
 
 2S = 
 
 iS? 
 
 S 
 
 o 
 
 o cs 
 
 
 CO 
 
 CO 
 
 " 
 
 
 
 CO 
 
 co oo TJ< to ire 
 
 CO 1C 1C 
 
 
 
 I 
 
 1C -^ O OO CC 
 CM_CO OS CM 
 
 CM 00 
 CM 
 
 CO OO 
 
 os_co. 
 
 
 
 i 
 
 IN CM CM CO CO 
 
 
 
 I! 
 
 CM t~e 
 
 --. 
 
 .8 
 
 
 
 S 
 
 (^ O CO 1C CO CO 1C 
 
 COCO 
 
 00 
 
 1 
 
 CO 
 
 CC 
 
 OS O CO-* 
 CO 1C CC 
 CM 00 CM CN 
 
 ;CM 
 : - 
 
 Tf* Oi O 
 
 r* o 
 ^* CM 
 
 
 
 c? 
 
 ssssill 
 
 OS 00 
 
 -_-, 
 
 CO^^H 
 
 
 
 CO 
 
 CM 1CCMCMCM 
 I 
 
 COIN 
 
 DEPARTMENTS 
 
 1 
 
 
 j 
 
 c 
 
 
 I 
 
 I 
 
 
 i 
 
 
 
 1 
 
 
 I 
 j 
 
 
 
 i 
 
 .' 
 
 i 
 
 
 
 Training school 
 
 j 
 I 
 
 'o 
 H 
 
 i j 
 
 g y 
 
 i 
 
 1 
 j 
 
 5 
 
 ~ 
 
 \\ 
 SS 
 
 1 ] 
 
 o : 
 
 Physical education 
 Physical science 
 
 Social science and history 
 Racial seipnoe 
 
 Agriculture 
 Arts and handicraft 
 Biological science _. 
 Business education and coi 
 Education 
 English 
 Forestry and nature study 
 Geography _.. 
 
 o i S 
 
 I j ll, 
 
 J Illll.
 
 Comparative Costs 
 
 169 
 
 
 
 artmen 
 Cost 
 
 
 
 OCO<-IOOO 
 
 cNcocooio 
 
 SS2 
 
 O CO CS 
 
 !0 
 ^^e^i 
 
 artmen 
 Cost 
 
 -. -I Tl 
 
 go oo 
 CJOTO 
 
 |S?.| 
 2E?5J2 
 
 "O 
 
 r^ko co - 
 
 esi <O-TJCM coco 
 
 cr c; o 
 _cooo 
 
 CONCO 
 
 sss 
 
 
 ^P^5 
 
 CM 5 co r~ co ' 
 
 ^i?s 
 
 Sc4 oo CD So *- -H r*. 
 
 <M *- *-H ^N ci ^-CO 
 
 -" ** Ci O 
 CO CO CD tO 
 
 C C 
 
 Nooeoio^^t*Ci 
 
 -H ^H ^N ^H C4 CO CO ^ 
 
 ..t ^ -c ^ t rc r 
 
 7- 
 
 COCN 
 
 X Tl 
 o *o 
 
 ocd 
 
 JfJ ig>i g|l"fli 
 Bill >& S8|-g||| 
 
 lilliifi^iliril 
 
 ^jncoSwt2oBsaai2J;3Sa2odSfcc L
 
 VITA 
 
 The author of this dissertation, Lawrence Benjamin Hill, was 
 born November 16, 1876 at McKim, Tyler County, West Virginia. 
 
 ACADEMIC TRAINING: 
 
 Rural school 1884 to 1894 ; State Normal School at Hunting- 
 ton, W. Va., 1897 to 1900, diploma; West Virginia Uni- 
 versity 1903 to 1906 , A. B. ; Scholar, University of Nebras- 
 ka, 1906-07, A. M. ; Scholar, Teachers College Columbia 
 University, 1907-08; Fellow, Teachers College, Columbia 
 University, 1912-13; attended Teachers College, Columbia 
 University, summer session, 1920. 
 
 PROFESSIONAL EXPERIENCE : 
 
 Taught rural school 1894-98; Principal, ward city school, 
 1898-99 ; Superintendent, city schools, 1900-1903 ; Principal, 
 Tyler County High School, 1908-1912 ; President, State Nor- 
 mal School, Athens, W. Va., 1913-18 ; Associate Professor of 
 Education, West Virginia University, 1918-20; Professor 
 of Education, West Virginia University, 1920
 
 
 H 
 
 UNIVERSITY OF CALIFORNIA 
 
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