Union, a single board administers the affairs of the schools. Cities having a certain specified population are generally exempt from the authority of the county board. These are classed as independent districts. The affairs of the rural schools are administered by a single board consisting of five or seven members, elected at large. Such a board is able to reduce materially the cost of the upkeep of these schools, since they are able to buy the needed equipment and supplies, such as coal, maps, globes, charts, etc., at wholesale. In the matter of coal alone it is apparent that a great saving could be effected to the districts if the purchase were made in the manner indicated. The county board selects the teachers, and by and with the advice of the county superintendent puts into operation a uniform system of administration, secures uniform courses of study and that unity of aim and action on the part of all the schools that is so necessary to the highest success.

A most serious evil in our present district system is the great variation in the valuation of taxable property among the various districts. At present one district rich in valuation maintains an excellent school for seven or more months each year upon a very low tax levy. The adjoining district, because of a low valuation, is forced to make an extremely high levy to maintain school even for the minimum term. Under the county system the budget is made up by the county board and the taxes are levied upon the entire county and distributed in an equitable manner.

The proposed system is sometimes objected to on the score that it is undemocratic; that it removes from the people the last vestige of popular government. This reasoning does not appear to be sound. For in the district system it is to be noted that the number of patrons that attend the annual meeting is very small; that through them a body of directors is chosen, and to this body is delegated the powers belonging to the people of the district. The plan for a larger unit does exactly the same thing, with this difference that a board chosen for the purposes mentioned, and having the responsibility of the administration of the educational affairs of the entire county, is certain to be selected with more care. The county unit does not contemplate the destruction of the present districts, but allows them to remain as they are. A local representative is chosen for each district to look after the buildings and to notify the board of needed supplies.

It is not my purpose to discuss at length this important subject. A legislative committee of ten is considering and studying carefully the problem of the larger unit of school organization, and will present to the legislature their recommendations based upon the evidence secured. I have discussed this problem with many

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people in various parts of the state, and have been most agreeably surprised at the unqualified approval given by so many of our thoughtful citizens. I earnestly commend to the attention of the legislature this important subject, and trust that it may receive most careful attention at their hands.

V. RURAL SCHOOL CONDITIONS; DISTRICT SYSTEM

Rural School Conditions. Our present district system and the ease with which boundary lines may be changed are responsible for a multitude of ills. Districts are irregular in shape, and unequal in size, population and wealth. Anxiety to be near the school house has caused the formation of numerous new districts, until many are too small and too weak to support good schools. A district financially weak means high taxes, short term, low wages, poor school. There are districts in the same county sometimes they are adjoining the valuations varying from a maximum of $50,000 to $150,000; to a minimum of $6,000 to $10,000. The one on a ten-cent levy is able to employ a good teacher for a term of eight or nine months; the other with a sixty-five cent levy is under the necessity of letting a four-months' term to the lowest bidder. These conditions seriously impede progress.

Inequalities in school population are in keeping with other inequalities, but the larger number of pupils does not always belong to the wealthier district. In fact, many districts of less than average valuation are under the necessity of maintaining two schools

one for negro children. There are many districts, some of them financially weak, in which the enumeration is 70 to 100 children and the attendance 50 to 75. Others, some of them wealthy, enumerate 15 to 25 children, and 10 to 15 go to school. The school unit as now constituted is responsible for these conditions. We fear that very little change for the better can ever be made until a different organization is effected.—Supt. L. J. Hall, in 51st Mo. State School Rept., 1900, p. 91.

Types of School Boards.-Members of school boards should have a two-fold qualification: business training, and a knowledge of educational work. This naturally presupposes at least ordinary intelligence. The school directors supervise all of the work of the teachers, select ext-books, and, to a certain extent, dictate the course of study. In addition to this they make all contracts, build and equip schoolhouses, and have sole charge of valuable property. Yet there are a few Secretaries in the State who cannot write their names, there are a number of Treasurers who cannot

add a column of figures, and there are Presidents unacquainted with the English language. It is not surprising that county superintendents find it impossible to secure records, and that county treasurers are puzzled in their efforts to balance accounts.

They have more authority than the county superintendent or the state superintendent, and, under present laws, the taxpayers have no redress in most cases of flagrant mismanagement. A director may be removed for malfeasance in office, but relief through the courts is slow. A school board may disregard the law and enjoy various illegal perquisites without the least fear of any serious consequences. Biennial Report Supt. Publ. Instr. Colo., 1897-1898, p. 10.

The District Treasurer. In many districts the election of school treasurer arouses more interest than the election of director, yet it is a useless office as far as administration of the schools is concerned. A very great deal depends upon the man elected director. It not infrequently occurs that the election of director hinges upon whom he will support for treasurer, or what bank he favors, in order that some one or some bank may have the use of the school funds on deposit without interest. No such business methods are permitted concerning other public funds.

Why should $5,000,000 of school funds be handled to the advantage of private interests?

The funds would be safer in the hands of the county treasurers on account of the better methods of bookkeeping and the methods of making semi-annual settlements with those officers. Most of the counties in the state could handle the payment of school warrants directly through the county treasurers without any additional expense to the county. State Supt. Deyoe, in Bien. Rept. Dept. Publ. Instr. Iowa, 1911-1912, p. 29–30.

Number of School Officers. Under our laws nearly 25,000 men are elected as school officers, and to them is committed directly the care of the public schools. I do not care at this time to discuss the propriety or the necessity of such a large number of men to look after the welfare of about 7000 school districts, but it is clear to any observer that each school district is practically a law unto itself, and that school affairs are managed in one district without any reference whatever to the welfare or the desires of an adjoining community. This may be perfectly proper under ideas of local self-government, but in my judgment it is to the detriment of the children who attend the public schools and for whose benefit public schools exist. Too many school boards in their management

of affairs seem to think that the public school exists solely that they may hold an office, or for their especial benefit. This is a mistake, and the disastrous results which we sometimes see, when school boards maintain this attitude, warrant the people in quickly destroying the power not only of the board but of the individual members, so far as they may come in contact with the schools. Publ. Instr. Michigan, in 68th An. Rept., 1904, pp. 16-17.

Supt.

Small and Unnecessary Schools. In Illinois there are 32 districts which have no schools at all. There are 106 schools with fewer than 5 pupils, 589 with fewer than 10, and 1,460 with fewer than 15. . . . In Missouri in 1907 there were 555 districts enumerating less than 20 pupils. In Arkansas in 1906 as many as 462 schools enrolled less than 11 pupils, and in Wisconsin 270. In Kansas 87 schools have an enrollment of 5 or less, 474 an enrollment of from 5 to 10, and 1,049 between 10 and 15. In Michigan in 1902 there were 51 schools with 2 or fewer pupils, or which had no schools at all. Final Rept. Ill. Educ. Com., 1909, p. 122.

High Schools. As fast as our towns have abolished the district system by their own vote, they at once began to consider the matter of a high school. So long as the districts exist, we shall not have high schools; but if we can get rid of the districts, we shall ultimately be able to provide high school facilities for the greater part, if not for all, of the children of the state. Supt. Stockwell, of Rhode Island, in a statement made before the abolition of the district system there.

CHAPTER VIII

THE TOWN AND TOWNSHIP SYSTEMS

THE township system has in the past been extensively recommended for adoption in those states where the use of the township for other governmental purposes is common, and the town system, of which the township system of the west is an adaptation, is in use in all New England. The nature of this form of school organization may be seen from an illustration of each.

I. THE NEW ENGLAND TOWN SYSTEM

This is well illustrated by the state of Massachusetts. The following digest, collected from the laws relating to education, shows how school matters are managed there.

1. The school affairs of each city and town shall be under the charge of a School Committee, unless a Board of Education has been provided for by special act. For failure to choose, a fine of $500 to $1000.

2. This Committee shall have general charge and supervision of all the public schools, industrial schools, evening schools, and other schools established, and may make regulations governing them, and determine the number of weeks each shall be kept. (Chap. 42, Secs. 25-7.)

3. "Each town shall provide and maintain a sufficient number of school houses, properly furnished and conveniently located, for the accommodation of all children therein entitled to attend the public schools." Failure to comply with this provision means a fine of from $500 to $1000. School committee has discretionary power, however. Committee has charge of school houses, and furnishes fuel and supplies. (Chap. 42, Secs. 22-4.)

4. "A town which refuses or neglects to raise money necessary for the support of schools (as required by law) shall forfeit an amount equal to twice the highest sum ever before voted for the support of schools therein." (Chap. 42, Sec. 23.)

5. "Every city and town shall maintain, for at least 32 weeks,