Educational Research in Major American Cities 9780231881418

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Educational Research IN

MAJOR

AMERICAN

CITIES

by B A N G N E E ALFRED LIU Submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy, in the Faculty of Philosophy, Columbia University

MOBNINGSIDE

Φ

HEIGHTS

KING'S CROWN

1945

·

NEW

PRESS

YORK

Copyright

19U5 by

ΒA KensE AL FRED LIU

Printed

in the United States

of America

ΚIKG'S CROVH PRESS is a division of Columbia University Press organized for the purpose of making certain scholarly material available at minimum cost. Toward that end, the publishers have adopted every reasonable economy except such as would interfere with a legible format. The work is presented substantially as submitted by the author, without the usual editorial attention of Columbia University Press.

ACKNOWLEDGMENTS To Professors George D. Strayer and Helen M. Walker for their tutelage, guidance, and encouragement; To all my teachers and associates at Teachers College and in the Advanced School of Education for their advice, assistance, and general inspiration; To the directors and other officers in all the city school research bureaus visited or contacted in the course of my study, for their generous cooperation; To Independent Aid, Inc., for financial assistance in connection with the study; To the memory of my sister, Elsie Yaunee Liu, who would have been happy to see the completion of this work.

B. A. Liu

TABLE OP CONTENTS Chapter I

II

III

IV

THE PROBLEM AND METHODS OF STUDT The Problem Previous Studies . . . Methods of the Study . . Some Basic Assumptions . . Limitations of the Study. .

Page

. . . .

. . . .

. . . .

1 1 U 6 8 12

. . . .

DESCRIPTION OF THE BUREAUS . B a l t i m o r e . . . . . . . . . New York Boston . . . . . . . . . Detroit Cleveland. Los Angeles . . . . . . . . Pittsburgh St. Louie Milwaukee. . . . . . . . . San Francisco . . . . . . . . Philadelphia Chicago FUNCTIONS AND ORGANIZATION Functions Defined In Official Documents. . Functions Inferred from Activities Reported . Other Services Performed by Bureaus . . . Summary of Functions . . . . Organization of the Bureaus . . . . . Functional Divisions Within the Bureaus. . PERSONNEL, EQDIBŒNT AND EXPENDITURES Characteristics of Research Workers Equljment and Facilities. . . Expenditures for the Bureaus . .

. .

. .

. .

1 3 13 IT 25 27 31 35 37 1*0 Ivi 1*2 43

1*8 1*8 52 56 . 5 8 60 . 65 . .

71* 71* 79 8·*

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

tri i i

V

VI

VII

MAJOR EMPHASES DC ACTIVITIES Weighted Time Distribution Contents of Records and Files. Deports and Publications. SOME PHASES OF ACHIEVEMENT The Testing Service. Publication of Research Studies Appraisal of Bureau Studies . Particular Types of Service .

. .

. .

. .

. .

'86 .86 92 .

. . .

106 106 113 133 135

SUMMARY AMD CONCLUSIONS : SOME GUIDING PRINCIPLES Functions of a City School Research Bureau . Organization of the Bureau . . . . . The Bureau's Personnel . . . . . . Equipment and Facilities. . . . . . Financial Support . . . . . . . Activities of the Bureau. . . . . . Results and Accomplishments . . . . .

. 139 . lUl lU2 1^3 lMv IU5 1^5 IU6

. . .

. . .

. . .

BIBLIOGRAPHY

IU8

Appendix A

A Chronological Outline of the Establishment and Development of City School Research Bureaus in Cities of over 500,000 Population in the United States, with Dates of Important Related Events 152

Β

List of Content Educational Periodicals Available in the Professional and Reference Libraries^in the Twelve Largest City School Systems of the United States

155

Programs of the First, Eleventh and Twenty-first Annual Educational Conferences in Detroit City Schools, Held under the Direction of the Department of Research . . . . . . .

159

NOTES

I62

C

ΤΑΚ.E OF CONTENTS

is

List of Tables Table I

II III

IV

V

71

VII

VIII IX I XI HI

Uli ZTV

Page Comparison- of Certain Characteristics of Research Bureaus in Cities of Three Different Population Croupe . . . . . . . . . List of City School Beeearch Bureaus in Cities of over 500,000 Population in the United States . Distribution of Personnel of the Bureau of Reference, Research and. Statistics, Hew York City S c h o o l s . . . . . . . . . Assignment of Rooms by Divisions, Bureau of Reference, Research and Statistics, New York City S c h o o l e . . . . . . . . . Budget Expenditures for Bureau of Reference, Research and Statistics, New York City Schoole, 193^ to 1939 Roam Assignments in the Department of Research and Informational Service, Detroit Public Schools. . . . . . . . . Number of Mimeographed Bulletins Issued Each Year by the Bureau of Educational Research, Cleveland Public Schools, 1923-39 . . . . Annual Expenditures for Bureau of Educational Research, Cleveland Public Schools, 193^-38 . . Functions Assigned to, or Services Performed by, Each of the Twelve City School Research Bureaus. Position of the Research Bureau in the Organization of the City School Systems . . . . Number and Classification of Workers in Each of the Twelve Bureaus . . . . . . Distributions with Respect to Certain Characteristics of Forty-Eight Research Workers in Eleven B u r e a u s . . . . . . . . . Types and Amounts of Working Space Provided for the Staff in Each of Eleven Bureaus .. . . Type· and. Rumbera of Pieces of Special Equipment 7crund In Each of Eleven Bureaus . . . .

7 9

23

2k

25

31

33 31* 6l 66 75

78 8 0 82

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

XV Reference Library Facilities Available to Each of the Twelve Bureaus . . . . . . 83 IVI Annual Expendítureβ for Each of Eleven Bureaus, with Total Current Educational Expenditures for the Respective School Systems. . . . . . 85 XVII Estimated Time Distribution for Each Worker, and Weighted Total Time Distribution for All Workers, in a Hypothetical Bureau, to Illustrate Method of Weighted Time Analysis 88 XVIII Estimated Distribution of Weighted Time of Each of Eleven Bureaus According to Major Groups of Activities 91 XTT Typee of Records and Files Maintained by Each of Eleven Bureaus . . . . . . . 9^ XX Analysie by Subjects of Mimeographed Bulletins Issued by the Cleveland Bureau in Four-Year Periods between 1923 and 1939 96 XXI Page Analysis of the Los Angeles Educational Research Bulletin, Volumee III to XI, 1923-32 . 99 XXII Range of Subjects Covered, and Amount of Space Devoted to Each Subject, in Articles Related to Research Activities and Results in Volumes I to XIII of Pittsburgh Schools, 1926-39 . · .101 TXTII Analysis of Contents of Mimeographed Special Bulletins Issued by the Pittsburgh Bureau, 1930-39 · 102 XXIV Relative Amounts of Space Devoted to Different Fields and Topics in Printed and Mimeographed Publications of Nine City School Research Bureaus lOU XIV Total Number of Tests of All Kinds Given by or under the Supervision of Research Bureaus in Eight City School Systems, 1938-39 . . -113 XXVI Summary of Topics of Papers Presented at the Annual Educational Conferences in Detroit, 1919-39 136

TABLE OF CONTENTS

I

List of Figures Figure 1 2 3 4

Page Organiratlem of the Baltimore City Schools, Shewing Position of the Research Bureau Plan of Reorganization, Bureau of Reference, Research and Statistics, Rev York City Schools Organization of the Department of Research and . Informational Service, Detroit Public Schools General Organization of the Department of Curriculum Study and Research, Pittsburgh Public Schools

18 22 30 38

Chapter THE

PROBLEM

AND

I

METHODS

OF

STUDY

The idea of establishing bureaus cf research in local school systems appears to have been first suggested by J. M. Rice1 as early as 1902. The actual establishment of such bureaus began after the New York School Survey of 19II-I2, under Hanus. The report of that survey contained a recommendation for the establishment of a Bureau of Investigation and Appraisal.2 The first bureau to be established was that cf Baltimore in 1912, followed by one in New York in I915. The movement spread among ether cities, until at present euch bureaus are found in more than sixty city school systems in all parts of the United States. There are few cities of over 200,000 population without a bureau of this nature in their local school systems. Some of the oldest established, as well as the largest and best organized bureaus are found in the largest cities. Among those cities with a population exceeding 500,000 only one has no bureau of this kind, while another lacks the definite form of organization, although the usual duties of such a bureau have been performed for a number of years in the office of an assistant superintendent. The

Problem

The problem of the present study is to inquire into the organization, activities and accomplishments of a selected number of these city school research bureaus, with the object of formulating certain general principles that may be of value to those who are concerned with the establishmsnt of similar bureaus in the larger school syeterna in this country and elsewhere, or with the improvenent of the services of such bureaus already in existence. This problem is related to certain larger problems dealing with the whole question of educational research. Some of these

2

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

problema that seem to be of crucial Importance may be described under five major headings: 1. Nature and function of educational research. What is educational research? How is it related to research in other fields of human knowledge and endeavor? What is the logic of Inquiry as applied to educational Investigation? What are the basic conceptions which control and direct the wort of the educational investigator? What methods of Inquiry are appropriate In the field of educational research, and applicable to the various types of problems In this field? These and similar questions concerning the philosophy and methodology of educational research invite the careful study of those who wish to clarify the essential nature and function of this field of inquiry .3 2. Provisions and facilities for educational research. Since the establishment of the first bureaus of research in 1912 and 1915, a large number of similar organizations and agencies have been set up or utilized for th9 purpose of educational Investigation. Among these are the bureaus or institutes of educational research In universities and colleges, the bureaus of research under various names In the etate and local school systems, the various voluntary organizations and philanthropic agencies engaged directly or indirectly in educational research, and such organizations of national scope as the United States Office of Education, the National Education Association and the American Council on Education. Before proceeding with the further establishment or extension of provisions, either in the public or private agencies, for the conduct of educational research, it would be well to take stock of the existing facilities, in order to determine their adequacy or satlsfactorlness, and discover ways of improving upon the present servlces-and their utilization. 3. Results and accomplishments In educational research. If Rice's spelling investigations in 1891* be regarded as the beginning of educational research in this country,4 then a period of almost half a century has elapsed since that beginning What are the results and accomplishments to date? Are they of a nature and quality to Justify the expenditure of a large

THF PROBLEM AND METHODS OF STUDY

3

amount of effort and money over eo many years? Quantitative evidence on the output of educational research workers ie available in the published summaries and bibliographies of research, euch as the annual bibliographies of the United States Office of Education. Qualitative appraisal of this output still needs to be done.5 U. Training of workers for educational research. There are 281 persona designated as directors cf research in the directory of city school officers for 1939, issued- by the United States Office of Education. The msmbership of the American Educational Research Association at present numbers over five hundred. What are the qualifications of these hundreds of workers engaged in educational research? What specific preparation did they receive for this work? If educational research is to become a specialized profession, what is the type of training that should be provided for those who are to enter upon this work? Since the burden of training workers for educational research has largely fallen on university schools of education, hew far are they consciously and definitely fulfilling such a function? Answers must be sought to these and similar questions that have been raised with regard to the training of workers for research in education.6 5. Outlook for the future development of educational research. What is the outlook for educational research in the future? What place will it occupy in the determination of educational policies? In the improvement of educational practices? Has the movement for organized educational research reached or passed its zenith? Will the future growth and development be intensive rather than extensive? Will research contribute toward the solution of the numerous problems of education confronting the schools today, or will Professor Adler's words be true that "...the basic problems of education, cannot, thay have not and never will be solved by the methods of empirical science, by what is called educational research"?7 The problem undertaken in the present study comes directly under the second of the above headings, namely, an examination of the existing provisions and facilities for educational research. It is also concerned with certain aspects of the other

4

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

problema, inasmuch as these problema are necessarily interrelated. Previous Studies A general survey of organizations devoted to educational research was made by Chapman in 1927.® The activities of the foundations in providing financial support for research in the higher educational institutions have been analyzed recently by Hollis.9 The research activities of the United States Office of Education have been surveyed by Judd 10 in one of the staff studies of the Advisory Committee on Education. Nifenecker 11 made what was perhaps the earliest survey of research bureaus in city school systems. H9 reported in I918 that he had found eighteen such bureaus established between 1912 and 1917, one of which had been discontinued. Deffenbaugh,12 Martens,13 and Wright,14 in the United States Office of Education, gathered data on the organization, functions, and other aspects of city school research bureaus, and reported these in a series of leaflets published by the Office of Education in I923, I92U, and I93I respectively. Chapman15 gathered data from sixty-five city school research bureaus relative to theii* personnel, support, functions reported, and techniques and results in certain functions. The cities varied in size from less than 10,000 population to that of New York City. About one-fourth of these cities have since discontinued their research bureaus. Herbst 10 secured questionnaire returns from forty-eight research bureaus in cities of 100,000 population or less. He found a fairly close correlation between the functions reported to be performed by the bureaus and the functions considered by their directors as "proper" functions for such bureaus . Agunod 17 analyzed different types of administrative organisation for research, based in part on data from the United States Office of Education, and proposed a plan of organization for a general research staff for the Bureau of Education in the Philippine Islands. In connection with the National Survey of Secondary Educa-

THE PROBLEM AND METHODS OF STUDY

S

t i o n , Z e i g e l 1 6 reported the a c t i v i t i e s and. functions performed by seventy research bureaus in c i t i e s of a l l s i z e s , and analyzed 1 1 1 studies made by c i t y school research bureaus as compared with t h i r t y masters' and doctors' theses by graduate students cf education. Regarding research a c t i v i t i e s in secondary schools outside of the bureaus, he says : The most s i g n i f i c a n t feature with respect to the attempt to obtain information ooncerning the nature and research work conducted by s t a f f members in secondary schools, some of which were reported as being outstanding and some of which were s e l e c t e d a t random, i s ths extremely small proportion of schools in which any research work i s c a r r i e d on. 1 » One of the most recent studies in t h i s area was reported i n 1958 by D. E. S c a t e s , 2 0 a t that tin» d i r e c t o r of research in the Cincinnati Public Schools. Of a group of s i x t y bureaus replying to hie questionnaire, t h i r t y - f o u r were in c i t i e s of over 200,000 population; f o u r teen in c i t i e s of 100,000 to 200,000 population; and twelve in c i t i e s of 30,000 to 100,000 population, Hulf of the t o t a l bureaus reporting were e s t a b l i s h e d b e f o r e 1926, but the m a j o r i t y of those in the smaller c l a s s e s of c i t i e s were e s t a b l i s h e d a f t e r I926. Other data reported in Scates' study include: age, sex, rank and t i t l e of d i r e c t o r s ; whether they devoted f u l l time or p a r t time to t h e i r bureaus; t h e i r l a s t previous p o s i t i o n s b e f o r e the present one; t h e i r s a l a r y compared with other school o f f i c e r s ; and the sources of s a t i s f a c t i o n and d i s s a t i s f a c t i o n with t h e i r work as expressed by the d i r e c t o r s . Witsky 2 1 has summarized c e r t a i n trends in the o r g a n i z a t i o n and f u n c t i o n s of c i t y school research bureaus, based on h i s study of f i f t y - t w o bureaus in c i t i e s of 100,000 population and over and an a n a l y s i s of previous s t u d i e s . Some of the trends a r e given as f o l l o w s : 1 . . . . E x c e p t f o r retardation due to the depression, the a c t i v i t i e s of bureaus have expanded continuously, and are i n c r e a s i n g l y regarded as e s s e n t i a l to school a d m i n i s t r a t i o n .

6

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES 2. The tendency ie distinctly marked for bureaus to work mere and more intimately with the personnel of th9 entire school system....

3. The rate of establishment of new bureaus In the large population group has begun to show a downward trend.... 1*. The trend is well defined toward greater academic training and professional experience [of the research directors] . 5. The salaries cf research directors have remained practically unchanged.... 6. The administrative rank which is recommended for the directors cf research in most of the literature on the subject is that of assistant superintendent....The actual tendency now is toward a new rank primarily devoid of extrabureau administrative obligations, and loosely defined as an independent or advisory position.... 7. [The] situation in related personnel is in line with the general trend to keep bureaus free of administrative duties other than those included in its fact-finding service. 8. The functions most common to the bureaus have been, and still are, those associated with the testing activity. 9. Although some functions are now given greater or less emphasis than previously, very little change has occurred in th? general phases of education in which the bureaus of research have engaged.22 Methods of the Study The selection of the bureaus for the present study was based on the size of the city, both for convenience and in view of the purpose of the study. A comparison was made among three grcups of cities of different sizes, in respect to certain characteristics cf their research bureaus, as reported in previous etudies. Ths result is shown in Table I. From this comparison it may be seen that the bureaus in the largest group cf cities are characterized as a whole by their

THE PROBLEM AND METHODS OF STUDY

7

more stable and longer hiatory of development and by a larger staff than thoae In the amaller cities. The nimber of different functlona reported for each bureau does not seem to vary with the size of the city. It was accordingly decided to include in this study only thoae citiea with a population of 500,000 or mere. Altogether there are thirteen eitles of thia size in the United States.23 Each of these citiea haa an officer deaignated as director of research.24 Table I Comparlaon of Certain Characterlatlca of Reaearch Bu.-eaua in Citiea cf Taree Different Population Srcupa Citiea with ?cpulati:n cf 500,000 500,000100,000cr more 500,000 300.000 No. of citlsa in group*

13

12

68

No. of bureaus reported, 1931**

11

9

32

Same bureaus in existence, I939***

11

9

20

Oldest bureau in group

I912

I912

1917

Median bureau for group

I91S

I923

192U

J-U8

1-10

O-I5

Date of establishment:**

Range of total staff** Median size of staff**

6

3

3

Median no. of different functions**

5

^

5

* U. S. Census, 1930. ** Based on Vright, op. cit., pp. Q-I3. *** Educational Directory, I9U0.

8

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

The list of bureaus Included in this study, with the dates of their establishment, and the names of their successive directors, is given in Table II. With the exception of Los Angeles, San Franc i so o and Milwaukee, all the bureaus were visited by the investigator between March and August, 1959· Information concerning the work Ln the office of the assistant superintendent in charge of research activities at Milwaukee was obtained by means of an interview with that officer and subsequent correspondence with him. Data for the Los Angeles and San Francisco bureaus were supplied by the officers in charge in those bureaus in answer to questionnaires and correspondence. The following outline of procedures, varied according to circumstances, has been adhered to in the main: 1. Preliminary investigation. Bibliographical and documentary study on the history and development of each bureau, in order to furnish the necessary background for understanding and interpreting its present status and accomplishments. 2. Actual survey of the bureau. By means of interviews with the director and his staff, examination of available records and reports in the files of the bureau and related offices, questionnaires and checklists, to obtain as far as possible an accurate and detailed picture of the activities and accomplishments of each bureau at the time of the investigation. 5. Analysis of reports and publications. Collection of reports, bulletins and other publications of the bureau, in typewritten, mimeographed or printed form, for subsequent analysis and appraisal. Some EJasic Assumptions Certain assunzione are made at the outset of this study, involving the investigator's own views on the philosophy of research ln the field of education, and the place cf a city school research bureau in relation to similar agencies organised for educational research. These assumptions will be stated hare and the investigator's position explained, without attempt at documentation.

II List of City Be boo 1 Research Bureaua In Cities of orar 500,000 Population In the United States Date of Establishment

City

Name of Bureau

Baltimore

Bureau of Measurement, Statistics and Research

1912

Edwin Hebden (1912-22) J. L. Stenqulat (1922- )

Boston

Department of Iduoatlonal Investigation and Measurement

I91U

Frank V. Ballou (191U-20) A. V. Kallom (1920-32) Ella L. Bresnehen (1932- )

Chicago

Bureau of Research and Building Survey

1928

Don C. Rogers (1928- )

Cleveland

Bureau of Educational Research

1916

C. W. V. J.

Detroit

Department of Research I91U and Inf ornati one 1 Service

Names of Directora

V. V. L. C.

Sutton ( 1 9 1 6 - 1 9 ) Thelsen (1920-22) Connor (1922-37) Adell (1937- )

3. A. Courtis (191U-25) P. R. Rankin (1925- 5 1 V. G. Bergman (1938- ) 2

Los Angeles Educational Research and Guidance Section

1917

R. H. Lane (1917-20) A. H. Sutherland (1920-2U) Elizabeth L. Woods (1925-

Milwaukee

(Office of an assistant superintendent)

1922

V. W. Tieleen (1922- )'

Hew York

Bureau of Reference, Research and Statistics

1913

Albert Shlels (1913-19) E. A. Nlfenecker (1919- )

Philadelphia

Division of Educational Research and Results

1925

Philip A. Boyer (1925- )

Pittsburgh

Department of Curriculum Study and Research

1919

J. Freeman Guy ( 1919-26) D. R. Sumstlne (1926-39) C. E. Maiwlller (1939- )

St. Louie

Division of Tests and Measurements

1921

S. R. Johnson (1923- )

San Francisco

Bureau of Research

I92U

J. D. Burke (I92U-28) R. F. Gray (1928- ) 4 L. L. BOITDEJI ( 1 9 3 9 -

)5

1. Supervising Director In charge of department. 2. Director of Instructional Research. 5. Assistant Superintendent. U. Deputy Superintendent In oharge of Adult Education ani Bureau of Research, since 1939. 5. Supervisor, Bureau of Research. 9

10

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

1. It Is assured that the problems of education constitute a special field of research, to vhlch certain general and specific methods of objective Inquiry are applicable. Education Is a definable field of human activity, concerned with the growth of the Individual on the one hand, and the continuity of the society on the other hand. Knowledge about the Individual's growth and developaent, whether derived from the physical, biological, psychological, or other findings, Is all relevant and applicable to problems relating to the education of the Individual. The results of Inquiry Into the constitution and operation of the school continuum, from whatever sources obtained, are also appropriate for use by the educational worker. But the fact that none of the sciences outside of th9 field of education are directly interested In the educative process, leaves unanswered most of the questions that concern the workings and the results of that process. The educational worker, seeking for answers to' his problems, must needs set about finding his own. Hence the problems of education constitute a special field of Inquiry, of vital Interest to the worker In the educational field. Certain principles of logical inquiry are of general application. Other methods, more or less specialized, have developed in accordance with the needs and conditions of Inquiry in different fields. The laboratory s»thods of experimentation, the field methods of exploration, the techniques of measurement, observation, of inductive and deductive Inference, of formulating and testing of hypotheses, and of calculation of errors of observation and prediction - all these may or may nçt be adaptable to the purposes of educational inquiry. Until or uniese a distinctive method or set of methods are evolved for educational research, the investigator in this field will continue to avail himself of methods and techniques found acceptable in othar fields of research, and adapt them as best he can for his .own purposes. 2. It is assumed that educational research can be conducted effectively under the auspices of organized institutions the major function of which is the administration and supervision of educational activities.

THE PROBLEM AND METHODS OF

STUDY

11

Granted, that educational research i s a legitimate f i e l d of inquiry, shouli i t be l e f t to the universities and similar Institutions whose function i t is to advance the frontiers of knowledge and to provide the leadership f o r the direction of those engaged in the more immediate a c t i v i t i e s of the d i f f e r ent professions and occupations? The w r i t e r ' s b e l i e f is that undoubtedly a large share of the burden, especially in respect to the n'ire theoretical aspects of educational research, w i l l f a l l on the higher institutions of learning. But the moire pract i c a l types of investigation, involving an intimate knowledge of the various needs, resources and limitations of the actual situations, aay very well be undertaken by those in close touch with ths administrative and instructional a c t i v i t i e s of the schools, Hence i t is possible that worthy achievements in educational research may come out of the e f f o r t s of schools and school systems to undertake the study of problems d i r e c t l y connected with their educational endeavors. 3. I t is assumed that the administration of a system of publ i c schools in a large c i t y is an enterprise of s u f f i c i e n t importance and dimension to warrant the establishment within i t s system of an agency devoted in whole or in part to educational research. The importance of a system of public education in a c i t y of several hundred thousand people i s not to be measured only in terms of the number of schools operated, or the number of teachers employed, or the amount of money spent in the provision of those schools and the support of those teachers. Hie primary concern of the school system i s the welfare of the children and adults - the generations of children and adults who come under th9 influence of the schools at various stages of their development. I f the taxpaying public of a c i t y are interested enough in their own school system to spend millions of dollars annually f o r i t s support, they should also be ready to devote part of their resources to the continuous study and Improvement of the educational processes and products of their schools. Hence the Justification f o r the establishment of a research bureau in a c i t y public school system.

12

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES Limitations of the Study

There are a number of limitations Inherent In a study of thle nature. Some of the limitations may be summarized, as follows : 1. The scope of the study Is necessarily limited by the amount of time and means available to the investigator. It is quite possible that other significant features of the work of bureaus of this type might have been discovered if the survey had been extended to include a number of the cities smaller than the selected group. If it had been feasible to include a number of the bureaus of research in state departments and state universities, additional emphasis might have teen placed on the importance of coordination of research activities amone the bureaus within the state. 2. It has also been necessary to restrict the inquiry largely to the activities and accomplishments of the bureaus specifically designated with the title, or entrusted with the function of research, in the twelve school systems. Undoubtedly there is much that is going on in other divisions or unita of the school systems that would properly be classed as research activities, and included in a study of educational research of the systems as a whole. 3- The final criterion of the value of the work of a research bureau in a public school system most likely lies in the degree of effectiveness with which its findings are able to Influence the practices and improve the quality of the educational work of the system. An attempt to appraise the work of the entire school system in view of the findings of research, even for one of the cities alone, would have been a task beyond the capacity of a single investigator, were he endowed with unlimited time and resources.

Chapter I I DESCRIPTION

OF THE BUREAUS

The following general description of the twelve bureaus included In this study ÌB intended to provide a background f o r the analysis of various c h a r a c t e r i s t i c s of the bureaus and the appraisal of their accomplishments, which will be given in subsequent chapters. The account of the establishment and development of the bureaus i s based for the most part on the published reports and other documents of the respective school système. The present condition of the bureaus i s described as of the time of the w r i t e r ' s investigation, approximately between March and December, 1939· the bureaus w i l l be desoribed in the order of their establishment. Hie dates of establishment are those a t which the bureaus or departments were f i r s t o f f i c i a l l y recognized. The names of the bureaus or departments aure those used o f f i c i a l l y a t the present time. The f i g u r e s given below f o r the population of each city are taken from the United States Census of I95O. The figures f o r the average daily attendance in the school systems are taken from the Biennial Survey of Education, I93U-I936. 1 Baltimore

Population of the c i t y : 804,87^ Average daily attendance: 106,037 O f f i c i a l name of bureau: Bureau of Measurement, S t a t i s t i c s and Besearch Date of establishment: 1912 Name of present d i r e c t o r : John L. Stenquist The work of the Baltimore bureau had i t s inception in February, I912, when one of the principals in the Baltimore schools became attached to the superintendent's o f f i c e as a s t a t i s t i cian, and conducted c e r t a i n studies based on objective t e s t s . The testing movement was Just gaining numentum a t about that

14

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

time, and the primary interest of the newly appointed official seemed to be in the use of teste on a city-wide scale, and thn comparison of results thus obtained with the results obtained by the authors of the teets in the process of standardization. Hie superintendent of schools, in his annual report of 1912, made the following reference to a "Bureau of Research and Statistics" : We have been very fortunate in having one of our principals available for research work since February. The results of one of his studies, on the arithmetical abilities of school children, Is appended to this report. To the best of my knowledge this Is the first time that such a study has been nade in any school system by a statistician regularly attached to that system. Baltimore can afford to be the pioneer in establishing, as a permanent part of its system, a Bureau of Research and Statistics.2 The next year the statistician prepared a number of tables dealing with enrollment, attendance, and related matters, which were Included In the Commissioners' Annual Report. Another function which soon devolved upon the office was that of securing various types of information at the request of the board, the superintendent, or other school officials. It was thus described by Mr. Hebden, the statistician: ...the Board of School Commissioners, ω well as the Superintendent and some of the principals, began firing questions at me. Most of them were with regard to salaries; in fact I must have compiled a comparison of salary schedules in other cities more often than any other one thing since I have been engaged in this work. Othe^ questions with regard to administration were asked until I felt I was becoming more or less of a questionnaire nuisance to other cities.3 The gathering of•statistical data, the measurement of pupils' abilities, and the answering of requests for information have continued to be the main functions of the bureau. Oie next step in the development of the bureau came as a result of the Baltimore School Survey of 1920-21, conducted under the direction of Dr. George D. 8trayer, of Columbia University.

DESCRIPTION OF THE BUREAUS

IS

The report of the Survey contains a brief eectlon concerning the Bureau of Research and StatiBti.ee, which saya in part: Not only should the Bureau of Research and Statistics be responsible for the collection and interpretation of data in the field of classification and progress of children, but a similar service should be rendered by this bureau to all the other departments of the city school system. This bureau should be the clearing house for all investigations that are being made in the school system. In fact, it should operate as the bureau for continuing the survey work which has been begun by this commission, so that there may be developed a continuous survey of the school system of the city.4 In accordance with the recommendations of the Survey Commission, th9 Board authorized the enlargement of the bureau and the securing of the services of a director for the enlarged bureau. Mr. John L. Stenquist, the new director appointed in 1922, has continued In that office to the present time. The statistician remained on the staff of the bureau until his retirement in I926. The activities of the newly reorganized bureau for the year 1922-23 were reported by Its director to have included the following : 1. Improvement in the classification of pupils. 2. Educational and vocational guidance· 3. Development of new tests, forme, and efficiency devicec. U. A comprehensive testing program. 5. launching of the publication Baltimore Bulletin of Education . 6. Beginning of a professional reference library. 7. Special training of teachers for research work. 8. Studies of pupil-teacher ratio, promotion and non-promotion, etc. 9. Collection of data for building programa. During the year 1923-2U, while the attendance department formed part of the bureau, the "Baltimore Packet Record System" was adopted for pupils' continuous records. In November, I926, Dr. H. B. Chapman was added to the staff as assistant director, upon the retirement of Mr. Hebien. In

16

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

that year the bureau began to conduct professional examinations of candidates for teaching positions, which function has remained with the bureau ever since. In 1933» a subcommittee of the Citizens Advisory Committee cn the Survey of the Educational Activities in Baltimore investigated the work of the bureau and recommended that "the Department must not only be maintained, but must not be further curtailed."5 It was In connection with th9 investigations of this Committee that the bureau prepared special reports on the work of various divisions and departments of the schsol system, including a mimeographed bulletin entitled The Work of the Bureau of Measurement, Statistics and Research: Showing Organization, Scope and Costs. During 1935 the bureau supervised the preparation of 13,000 feet of motion picture film on tho work of the Baltimore public schools, for use by the superintendent at regional meetings for parents. A method for the marking of test papers by machine was perfected by the director and Introduced in the bureau during 1936, for use in connection with the annual city-wide testing programs. These testing programs, on a regular annual and semi-annual schedule since 1927, now involve approximately a quarter of a million teets each year. The position of the bureau as constituted at present in respect to the organization of the Baltimore City School System may be seen from the chart of organization for that system. (Figure l). The personnel of the bureau at present consists of: the director, an assistant director, two research assistants, and three clerks. Other part-time special help is provided as occasion requires, such as during the peak-load of the testing program. The bureau occupies a suite of rooms in the Department of Education building, consisting of: One director's office One workroom for the rest of the staff One workroom for the machine marking of test papers One workroom for black-and-white printing of charts showing test results for each school

DESCRIPTION OF THE BUREAUS

17

The coat of the bureau, Including salariée, teat materials and other supplies, amounts to approximately $24,000 a year.® New York Population of the city: 6,930,446 Average daily attendance: 1,015,596 Official name of bureau: Bureau of Reference, Research and Statistics Date of establishment : I913. Name of present director: Eugene A. Nifenecker The establishment of a bureau or division of investigation and appraisal was recommended as a result of the New York School Survey ifi 1911-12, under Dr. Paul H. Hanus, of Harvard University. The actual recomnendation was written by Dr. Edward. C. Elliott, in his report to the Coarnittee on School Inquiry, and reads: .. .That there be established as an integral part of thf> system of school control, a Bureau or Division of Investigation and Appraisal. This bureau or division shall be in charge of a chief or superintendent, who is directly responsible to the Board of Education, and shall be organized in such a manner as to enable it to serve as the central agency for the gathering and interpretation of statistical and other data with reference to the schools; and also for the carrying on of such Investigations as are necessary for the rational development and expansion of the school system? Tne recommendation took effect when, on September 10, " 1913, the Board of Education authorized the establishment of a Division of Reference and Research, under the direction of the President of the Board. In November of the same year, Dr. Albert Shlels was appointed director of the newly created division, to begin his duties with the help of three clerks temporarily assigned to the division. The duties of the director were defined in section 35® of the By-Laws of the Board of Education, adopted Jane 10, 1914, as follows: a. To investigate all matters referred by the Board of Education, its president or committees;

Figure 1

Organization of the Baltimore City Schools, ShoyjLnfj jPoe City of Baltimore

Board of School Commissione: Superintendent Τ Assistant Superintendent General Teaoher Training Summer Schools Director Night Schools and Attendance Acting Supervisor

Assistant Superintendent Elementary Grades Director Physidal Education

Supervisor Industrial

Visiting Attendance Supervisor Teachers Officers Cammeroial Education

Director Colored Schools

Supervisor Assistant 1 SuperSuper- J visors Heme visors 1 Economics Supervisor Guidance

Handwriting Supervisors

Director Primary Education Primary Supervisors

ASE

Intermediate Supervisors

Bes Ass

Placement Counselors

J= Principals I Elementary Teachers Primary Pupils * As of June 1939.

1 Intermediate Pupils

Dil

rlnfl ¡Position of the Beseareh Bureau*

EH •lesionerà rati

Admini strative

] te

Assistant Superintendent Secondary Grades

Assistant Director Special Education

Director

Director

Art

Music

Assistent Director

Supervisors

Assistant Supervisors

Beseareh Assistante

Assistant Supervisors

Director

Beseareh

Supervises

Assistant Supervisore

Assistant Superintendent Business Director Supplies and Equipment Bead Accounting Clerk Supervisors

Warehouse Staff

Building Construction Engineer Τ Supervisors

Engineers

Clerks

Hollerith Operators

20

EDUCATIONAL RESEARCH IN MAJOR AMERICAN C I T I E S

b . Ae f a r a s nay tie f e a s i b l e , supply e d u c a t i o n a l d a t a and I n f o r m a t i o n t o members of t h e supervisory or t e a c h i n g s t a f f and t o t h e g e n e r a l p u b l i c ; c . P r e s e n t a r e p o r t to t h e Board I n January and J u l y of each y e a r , on the work of t h e D i v i s i o n ; d. Submit to t h e Board reconmendations f o r Inquiry and i n vestigation; e . Have a c c e s s a t a l l r e a s o n a b l e times to the books and r e c o r d s of the s e v e r a l o f f i c e s and bureaus of the Department of Education; f . I s s u e f o r p u b l i c a t i o n such documents and s t a t e m e n t s as may be approved by the Board or the P r e s i d e n t . 8 The f i r s t semi-annual r e p o r t of t h e d i v i s i o n was Issued i n J u l y , 191^, a s P u b l i c a t i o n No. 5 of the D i v i s i o n of Reference a n i Research. I n 1917, the d i v i s i o n was p l a c e d under the s u p e r v i s i o n of t h e s u p e r i n t e n d e n t of s c h o o l s , a f t e r a New York S t a t e l a v had r e q u i r e d the s u p e r i n t e n d e n t of echools t o be the c h i e f execut i v e o f f i c e r of t h e Board of Education. Hie following y e a r , the S t a t i s t i c a l D i v i s i o n was merged with the D i v i s i o n of R e f e r ence and Research, and the name of the D i v i s i o n changed t o t h e Bureau of Reference, Research and S t a t i s t i c s . Mr. Eugene A. N l f e n e c k e r , who had been a s s i s t a n t d i r e c t o r s i n c e 1915, was appointed d i r e c t o r of the bureau in 1919· At t h a t time the d i r e c t o r r e p o r t e d the following f u n c t i o n a l o r g a n i z a t i o n f o r the b u r e a u : 1. Information d i v i s i o n ( r o u t i n e ) . 2 . D i v i s i o n of e d u c a t i o n a l d a t a and s p e c i a l Information. 3. D i v i s i o n of l e g a l dataIt·. D i v i s i o n of e d u c a t i o n a l I n v e s t i g a t i o n . 5. S t a t i s t i c a l d i v i s i o n . 6. General o f f i c e s t a f f . About the same time the d i r e c t o r of the bureau began p a r t i c i p a t i n g in the p r e p a r a t i o n of th9 budget estimate f o r t h e s u p e r i n t e n d e n t of schools and t h e Board of Education, a f u n c t i o n he has r e t a i n e d e v e r s i n c e . The d i v i s i o n of l e g a l d a t a was t r a n s f e r r e d to the o f f i c e of the s u p e r i n t e n d e n t i n I923, leaving f o r the bureau the f u n s t i o n s

DESCRIPTION OF THE BUREAUS

21

of reference, statistics, and educational research, as indicated by its name since the reorganization in 1 9 1 8 . In 192h another survey of the. New York City Schools was made under the direction of Dr. S„ A. Courtis, at that tima Director of Instruction and Dean of the Teachers College in the Detroit Public Schools. The report of the survey contains a recommendation for the creation of separate research "bureaus in each of the major fields of school administration, including finance, housing, personnel, administration, instruction, special education, informational service, and non-instructional activities. This reconuHndation, however, was never put into effect by the Board. In 1956 the Board of Superintendents recommended a reorganization and enlargement of the bureau to provide for the following divisions, each division to be staffed by a quota of professional and clerical workers: 1. Administrative division. 2. Division of curriculum research. 3. Division of instructional research. 4. Division of administrative research. 5. Division of tests and measurements. 6. Division of statistics. 7. Reference division. 8. General office division. The functions to be performed by the respective divisions may be seen from Figure 2, which was the blueprint for the proposed reorganization of the bureau. By the appointment of three additional research aseistants during 1937 and of two new assistant directors in 1939; the proposed reorganization is well under way toward completion The personnel of the bureau, as of March 1, ^^O, is shown in Table III. The bureau at present occupies a suite of rooms on the first floor, and various rooms on three other floors of the Board of Education building. The assignment of the rooms to the different divisions may be seen from Table IV. A complete assortment of punching and tabulating machines has been installed both in the statistical division and in the

Β g 1

g

1 s

I 05

Λ O CQ

I FM

22

β o «Η

+>

O υ

1 Ì ra s Η

]

division of teste and measurements. The rental charges and repairs on these machines amounted to ever $16,000 for the year 1958. Table III Distribution of Personnel of the Bureau of Reference, Research and Statistics, New York City Schools* Division

Professional staff

Adminis trat ion 1 Director

Non-professional staff 1 5 2 1

Curriculum Research

1 Assistant director 2 Research assistants 1 Junior research assistant

Instructional Research

1 Research assistant 2 School psychologists 7 Teachers assigned

Administrative Research Tests and Measurements

1 Assistant director 2 Research assistants 1 Junior research assist k School psychologists

Statistics

1 Assistant director

Chief clerk Clerks Typists Tabulating machine operator

2 Clerks

5 1 1 2

Clerks Clerk Typist Tabulating machine operators

12 Clerks 5 Tabulating machine operators 1 Comptometer operator

Reference

2 Clerks 2 Typists

General Office

5 Clerks U Typists

TOTAL BUREAU PERSONNEL

2h

U5

* As of March 1, 19^0. 23

Table 17 Assignment of Rooms fry Divisions. Bureau of Reference, Research and Statistics, New York City Schools* Division

size

Assigned use f o r room

Administration

Office Office

23 X 2k 20 X 2k

Curriculum Research

Office Work and C onfe rene e Library

17 X 22 Assistant director 20 X 2k Research assistants

Instructional Research

Office Work and C onference

19 X 22 Assistant director 22 X 2k Research assistants

Administrative Research

Office

12 X 26

Tests and Measurements

Office Workroom Conference

16 X 2k 23 X 26 20 X ko

Office Library

2k X 36

Office Workroom

20 X 21» Stenographers 26 X 28 Miltlgraph and mailing

Reference General O f f i c e

Curriculum library

Clerke and f i l e s

Assistant director Research assistants School psychologists; tests and f i l e s Machine room 18 X 2k Machines f o r tabulation of test results Workroom 27 X 39 Assistant director and s t a t i s t i c a l clerke Machine room 26 X 27 Machines f o r s t a t i s t i c a l tabulations 18 X

IO οι

Statistics

20 X 2k

Director Clerke and f i l e s

* As of March 1, 19^0,

24

Information clerke Stacks and reading room

DESCRIPTION OF THE BUREAUS

25

The total expend!turea for the bureau, including salariée, supplies, equipment, rental and repaire on machinée new amount to approximately $276,000 a year. The budget expendituree of the bureau each year from 1934 to 1939 are given in Table V. Table V Budget Expendituree for Bureau of Reference, Beeearch and Statistica, New York City Schoole, 1934 to 1939* Total amount budget

Year

Salaries for staff

Supplies equipment, expenses

Tabulating machine expenses

193^

124,485.19

6,779.96

6,267.00

137 , 532.15

1955

122,377.55

7,688.57

6,242.00

136,308.12

1936

122,173.18

7,239.46

6,758.00

136,170.64

1957

237,222.59

14,943.73

16,545.84

268,712.16

1958

245,496.68

13,872.50

16,544.25

275,913.Ό

1959 (è year) 124,042.85

6,488.96

8,273.23

138,805.04

* From data supplied by the Bureau.

Boston Population of the city: 781,188 Average daily attendance: 121,446 Official name of bureau: Department of Educational Investigation and Measurement Date of eetabliehment: 1914 Name of present director: Ella L. Breenehen The impetus for the eetabliehment of a bureau of reeearch in Boston came partly from the New York echool survey and partly from the work of Courtie in testing. Through the recommendation of Frank V. Thompson, assistant superintendent of the Boston Public Schoole, who had been a member of the New York survey

26

EDUCATIONAL RESEARCH IN HAJOR AMERICAN CITIES

staff, the Boston School Conmlttee voted on January 30, 1911*, to establish a Department of Educational Investigation and Measurement, ...the purpose of said department being to promote educational efficiency and econo n^· in administration and executive procedure In the schools; to promote the Investigation and professional study of school problems and the development of standards of achievement In the various subjects and grades of school work: to develop a system of promotion of teachers after appointment on the basis of merit; to conduct Independent investigations under the Superintendent and School Conmittee, such as the workings of the new child-labor law, retardation of children, elimination of pupils in the high schools; to conserve the benefits of the testing work of recent years; and in general for the purpose of organizing on r permanent basis a testing and research department.8 In the following April, Frank W. Ballou was appointed director of the department, with a "submaster" and a teacher assigned to assist in the testing program. In 1915 the director made his first report on the work of the department, which was published with the report of the superintendent of schoole for that year. In 1917 the director was made an assistant superintendent and Arthur W. Kallom was appointed assistant director. The latter gradually took over charge of the department, as the former in his capacity as assistant superintendent, had more and more duties aside from the care of this department, until In 1920 he resigned as director and left the department in charge of the assistant director. After the death of Kallom *in 193*- j the department was headed by Ella L. Bresnehen, who was Acting Assistant in Charge, until she was appointed Director in 1935· In 1921, the department first undertook group testing of Intelligence and since 1930 the study of problem cases has beon a regular function of the department. The activities of the department at present comprise in the main: (l) city-wide programs of achievement testing; (2) citywide programs of intelligence testing; (3) study of problem

DESCRIPTION OF THE BUREAUS

27

cases by means of Individual teste and case studies; (4) making various studies for the Board of Superintendents; and (5) answering questionnaires sent by Individuals and educational institutions. The staff of the bureau consists of: the director, three research assistants, three clerks, and about twenty temporary clerks over a period of approximately five weeks. The department occupies three offices for the director, her assistants and clerks, and a large workroom for the temporary clerical help. Total expenditures for the department amount to about $26,000 each year, including salaries of the staff and th9 cost of tests, printing, and office supplies. Detroit Population of the city: 1,568,662 Average daily attendance: 235,504 Official name of bureau: Department of Research and Informational Service Date of establishment: 1914 Name of present director: Paul T. Rankin Between I9IO and 1914, S. A. Courtis was engaged in the standardization of his arithmetic tests In Detroit. He was a member of the New York School Survey staff in Ι9ΙΙ-Ι2, and also undertook some large-scale testing in Boston during 1912 and 1913. Through the interest of Assistant Superintendent, Charles L. Spain, in the work being done by Courtis, in testing and measurement, a Department of Educational Research was organized for the Detroit city school system, with the appointment of Courtis as supervisor In April, 1914. The functions of the department were defined In the superintendent's annual report for 1914, as follows: 1. Research. Scientific study of all phases of school work In order that the fundamental laws of mental development may be discovered, and Improved methods of administrative and pedagogical procedure developed. 2. Standardization. Measurement of the various products of school activities, and of the relative efficiency of the varlou«

28

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

methods, courses of study, etc., together with the formulation in objective terms, on the basis of such maasuremsnts, of standards of achievements in the various subjects and grades. 3. Statistics. Collection, tabulation, and interpretation of statistical data bearing on the progresa or needs of the system. U. Library and reference service. Supplying or securing for teachers, school board, or other Interested parties any desired information in regard to the Detroit schools, or the schools of other cities.10 The first annual report of the department was published as part of the superintendent1 s annual report for 1915. In this report Dr. Courtis recommended the designation of experimental schools or claeses for research purposes, a recommendation which was later carried out in part in connection with the Detroit individualization experiment. In 1919 the department was strengthened by the appointment of an assistant director and additional clerical assistants. Dr. Courtis, whose title was now changed to Director of Educational Research, was also made chairman of the supervisory council, thus placing him in direct administrative relationship with the teaching personnel of the system. The following year he was also given charge over the Teachers College of the city, with the title of Director of Instruction, Teacher Training and Research. Beginning in 1919, and· continuing uninterruptedly down to the present, there has been an annual educational conference in the Detroit Public Schools, at which members of the teaching, supervisory and administrative staffs of the system present the results of their studies on various topics. In 1920 the department published Research Bulletin No. 1: A Survey of Teachers' Salaries In Detroit, by Arthur B. Moehlman. Twelve numbers of these research bulletins, forming part of a series of the Detroit Educational Bulletin, were issued between I92O and 1927, tlie last number containing the proceedings of the Ninth Annual Educational Conference In 192?. In I923 the administration of supervision was removed from the department, while the name of the department was changed

DESCRIPTION OF THE BUREAUS

29

to that of the Department of Inetruction, with two divisione : the Division of Instructional Research and. the Detroit Teachers College. The director wae officially called Director of Instruction and Dean of Teachers College, while under him were an assistant director of research and an assistant dean of Teachers College. In 1925 Dr. Courtis resigned from active service in the Detroit Public Schools, hut retained an indirect connection with the system In the capacity of Educational Consultant. Paoli R. Rankin who was assistant director of research, had charge of the department. In I929 Dr. Rankin became director of research, and was then promoted to be Supervising Director of Research and Adjustment, having charge over the following departments: attendance, counseling, placement, psychological clinic, research, special education, and the boys' and girls' vocational schools. W. G. Bergman was at that time appointed assistant director of research. Meanwhile a separate department had been organized with the functions of administrative research, statistics, publications and personnel records. Since 1931 a number of realignments of departments and personnel have been made, the latest one, in 1938-39» resulting in the formation of a Department of Research and Informational Service, under a supervising director, comprising the following divisions : 1. Instructional research, with a director and an assistant director. 2. Administrative research, statistics, reference and publications in charge of an assistant director. 3. Informational service, headed by a first assistant. The present organization of the department, including the assignment of the personnel, is shown in Figure 3· The office of the supervising director is at present located in the Board of Education building. The various divisions of the department occupy rooms in an adjacent building, as shown in Table VI. The expenditures of the department amount to about $60,000 a year, including the salaries of the entire personnel and the

Figure 3 Organization of the Department of Research and Informational Serri ce, Detroit Public Schools*

Board of Kducatlon Superintendent Departaent of Research and Informational Serrice (Supervising,Director) Dirielan of Instructional Research

Division of Infornatianal Service

(Director) I

(Tlrst Asst.)

(Asst. Director)

Refer. Library

(Assistant)

(Teacher)

(2 Clerks)

(clerk)

(2 Clerks)

Division of Administrative Research (Asst. Director) (2 Clerks) Statis- Publications tics

(31 Clerks)

(Teacher)

* As of July 1939.

30

I

DESCRIPTION OF THE BUREAUS

31

cost of the teet supplies, but not including the cost of publications for tri9 whole system, which are edited in the publications office, and not including the cost of the publicity materials handled by the division of information service. Table VI Room Assignments in the Department -jf Research and Informational Service. Detroit Public Schools* Division

Room

Assigned for use

Instructional Research

Office Office Workroom Office Workroom Office Library Office Office

Director and clerk Assistant director and teacher Clerk and supplementary help Assistant director and clerks Statistical clerks Publications Stacks and reading room First assistant Assistant and clerks

Administrative Research

Informational Service

* Aa of July, 1939.

Cleveland Population of the city: 900,1*29 Average daily attendance: 135,51* 7 Official name of bureau: Bureau of Educational Research Date of establishment: I916 Name of present director: James C. Adell In 1916, ths Board of Education authorized the establishment of a Division of Reference and Research to supersede the office of Supervisor of Requisitions ani Reports, which had been in existence since I9II. The duties of the new division, according to the official board proceedings, included: ...the supervision of the system of reports, the determining of the form of the same, the collection and sunraarizing of

32

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

them at the end of the summer period, the studying of these reports and summaries along lines of promotion, non-promotion, repetition, retardation and elimination; c o i n i n g data along these lines, issuing tables of comparisons, which tables shall be both numerical and graphic; the photographing cf the same back Into the system; the conducting of tests comparing the efficiency of one type of school with another, the comparative effectiveness of the instruction in one subject with another; the scoring of papers and tabulating cf resulta and such other lines of investigation as may arise from time to time and be considered by the Superintendent of Schools and the Board of Education as profitable to the system.*" At first the new division also carried on the original functions of the superseded division with respect to the standardization cf educational supplies and equipment, and the clearance of requests for use of buildings and building charges. A separate division was organized in 1919 to care for these functions, leaving the Division of Reference and Research with the main duties In connection with the system of reports, the etudy of pupil progress, and the conducting of tests. From 1920 till 1922 W. W. Theisen was director of the division, from which position he resigned to take up an assistant superintendency in Milwaukee. In I921 the division prepared the "first of a series of surveys of the department of instruction, Cleveland Public Schools." This publication became the annual report of the Superintendent for that year. In 1923 W. L. Connor was appointed director of the division, and started the practice of numbering the bulletins Issued by the division each year, and filing them by means of a triplex numbering system, according to the nature of the subject dealt with in the bulletins. The number of such mimeographed bulletins issued, each year since 1923-2'+ is given in Ä b l e VII. In 192k th9 psychological clinic and the supervisor of guidance were assigned to the division. Two years later, however, these units were again separated and organized Into

DESCRIPTION OF THE BUREAUS

33

separate bureaus. Another bureau that had become separated from the division vas that of child accounting and statistics. The nane of the division was thence changed to the Bureau of Educational Research. Table VII Nuniber of Mimeographed Bulletins Issued Each Year by the Bureau of Educational Research, Cleveland Public Schools, 1923-1959 Year 1923-1924 1924-1925 1925-26 1926-27 1927-28 1928-29 1929-30 1930-31 1931-32

No. of Bulletins 112 199 72 85 73 75 77 71 86

Year 1932-33 1933-3^ 193^-35 1935-36 1936-37 1937-38 1938-39 Total 1923-39

No. of Bulletins 49 46 60 62 62 58 81 1268

The present staff of the bureau consists of: the chief of the bureau, a research assistant, two clerks, three statistical clerks and other temporary help ω are needed from time to time. The bureau is housed in a suite of rooms providing One office for the chief of the bureau One office for the clerks and the files of the bureau One workroom for the research assistant and some school offlcere not belonging to the bureau One conference room for committees on courses of study, etc. One workroom for the statistical clerks The expenditures for the bureau, including cost of tests used, are slightly over $22,000 annually. The amounts for the five years from 1934 till I938 for salariée, tests, and other supplies and expenses are given in Table VIII.

34

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES Iaì>le Vili Annual Expendíturea for Bureau of Educational Research. Cleveland Public Schools. 195J*-1936*

Year

Professional salaries

193^ 1935 1936 1937 1938

$6,1+28.61+ 6,608.6k 6,633.88 6,251.28 7,692.76

Clerks' salaries

Tests used

$6,950.86 $2,600.33 7,317.30 2 , 8 7 8 . 3 6 8,005.71 5,1+79.87 8,133.33 5,71^.75 8,2lU.U7 5,957.30

Other Total expenses expenditures $1+30.05 1*97.80

$16,1+09.88 17,302.10

3^3 Λ 9 229.75 31+7.29

20,462.95 20,329.11 22,111.82

* From data supplied by the Bureau of Child Accounting and Statistics. Los Angeles Population of the city: 1,238,01+8 Average daily attendance: 239»126 Official name of bureau: Educational Research and Guidance Section Date of establishment: 1917 Name of present director: Elizabeth L. Woods This bureau had its beginning In 1917, when Robert H. Lans, an elementary school principal who had become greatly interested in educational measurement was placed in charge of a Department of Educational Research. In 1 9 1 8 a Department of Psychology was organized to carry on the work of testing and classifying children for special rooms. Those two departments were merged into a Division if Psychology and Educational Research In 1920, with Mr. Lane as assistant superintendent in charge and A. E. Sutherland as director cf tha division. At the same time the staff was augmented by the appointment cf various assistants and teachers. In 1923, the work of testing, classification and counseling was extended to the high schools, and the activities und responsibilities of the division were increasing rapidly when the director resigned in I92I+. After an interim of seven months with no director in charge,

DESCRIPTION OF THE BUREAUS

35

Mise Elizabeth L. Wooda was appointed, director in 1925, and has continued in that position to the present time. The staff of the division in I93I coneisted of twenty-four full-time, and two part-time, members, organized into six functional sections, as follows: 1. Secondary School Research and Guidance Section - concerned with testing, guidance, and special duties in the Junior and senior high schools; 2. Secondary School Curriculum Development Section - concerned with the development of methods and practices of curriculum making, devising teaching materials, and In general investigating curriculum needs and practices in the Junior and senior high schools; 3 . Elementary Research and G-uidance Section - concerned with testing and educational guidance in kindergarten, primary and elementary grades; U. 3pecial Rooms Section - concerned with the administration and supervision of instruction in certain special classes, such as classes for gifted, subnormal, and backward children; 5. Psychological Clinic - concerned with the study and treatment of acute problems of educational and social maladJustmsnt; 6. Statistical Section - serving the division in the preparation of reports on surveys, special studies, and the like, and aleo as the "clearir® house" where information is given regarding test data on elementary school children.12 In recent years, the division has been reduced in scope and strength, and at present operates ae the Educational Research and Guidance Section under the Division of Instruction and Curriculum, Hie staff at present includes: the supervisor in charge of the section, four assistant supervisors, including two psychologists and a statistician; and ten clerks, including five statistical clerka. The expenditures for th9 bureau total about $37,000 a year. Pittsburgh Population of the city: 669,817 Average dally attendance: 95,051

36

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Official name of bureau: Department of Curriculum. Study and Research Date of establishment: I919 Noma of present director: Chirles E. Manviller In June, I9I8, J. F. Guy, a teacher of mathematics in the Teachers' Training School of Pittsburgh, who had assisted ths superintendent in some "research and measurement work," was given the title of director of research and measurement work. It was not till the following April, however, that he was assigned full time to that work and the Department of Measurement and Research was officially recognized. He carried on the work alene till 1922, when a clerk was added to the department. The department was expanded in I926 to include the function of curriculum study and construction, the name being then changed to the Department of Curriculum Study, Measuremant and Educational Research. In recent years the title of the department has generally been given as the Department of Curriculum Study and Research. D. R, S u m tine was appointed director of the expanded bureau, and given the help of an assistant director and two clerks. At the same time a cooperative plan was entered into by the department and the University of Pittsburgh, whereby graduate students in the School of Education of the University have been able to undertake studies of actual problems connected with the Pittsburgh public schools. In 1926 also began the publication of a bi-monthly, periodical entitled the Curriculum Study and Resear-h Bulletin, which name was changed to Pittsburgh Schools after June, 1950. A professional reference library was organized in 1928 and placed under the supervision of the department. Between I95O and 1959, the staff of the department included three assistant directors, a librarian ani three clerks, besides the director of the department. In March, 1959, D. R. Sumstin9 retired from service in the Pittsburgh schools, and Charles E. ffenwlller, one of the assistant directors, was appointed director of the department. The present personnel of the department includes: the director, an assistant director, a librarian and two clarks.

DESCRIPTION OF THE BUREAUS

37

The department occupies three offices in a suite, used, by the director, assistant director, and the two clerks, with the library adjoining the office of the director. The expenditures of the department are about $1^,00 a year. St. Louis Population of the city: 821,960 Average daily attendance: 98,122 Official name of bureau: Division of Tests and Measurements Date of establishment: 1921 Name of present director: George E. Johnson The Division of Tests and Measurements was established in I92I to supersede the Psycho-Educational Clinic, which had been created in 191^ to care for the examination of subnormal children and their recommendation to special schools. Besides the function of examining such pupils, the new division's duties were extended to include all types of research service to the various departments of instruction. In 1926, under a reorganization of the Department of Instruction, the plan was adopted of having nine divisions in the school system, each combining the functions of administration and research in one of the following areas: (l) attendance, ( 2 ) hygiene, ( 3 ) tests and measurements, ( Ό vocational guidance, ( 5 ) curriculum, books and supplies, (6) housing and fixed equipment, (7) personnel, (8) records and statistics, and (9) school and community relations. The principle underlying this scheme of organization was thus stated in the report of the superintendent for I927: Tue new organization of the department of lastruction in St. Louis is unique in one particular. Instead of providing a separate division of research without power to administer its findings, research becomes a definite function of every specialized division. One of the regulations governing a director states that it is his duty "to pursue research studies relating to the work of his division and to base all of his work upon as complete objective data as it is possible for him to assemble, and to present to the Superintendent with each report or recommendation an adequate

Figure It Penerai Organization of the Department of Curriculum Studj and Research, Pittsburgh Public School»*

* Pittsburgh, Pennsylvania. Board of Public Education. Curriculum Study and Educational Research Bulletin, Vol. I , No. 3 (January-February, 1927), p. 2k. 38

DESCRIPTION OF THE BUREAUS

39

abstract cf these data." This implies that research In the field of personnel, for example, will te both directed and applied by the personnel director; that research in the field of the building program, to use another illustration, will be both directed and applied by the housing director, after the Superintendent·has in each case examined the data and approved such administrative policies as may be involved.13 Three years later, this scheme was abandoned, and the Division of Tests and Measurements was left to care for the needs in both instructional and administrative research in the St. Louis public schools. The duties of the Division of Tests and Measurements include : 1. Giving of individual mental tests to pupils recommended by the school principal, or brought by parents or by others having a recognized responsibility for them. 2. Preparation for the Superintendent of all data needed for the assignment of children to the special schools for backward pupils. 3. Preparation or recomnendation of such examinations and tests as the Superintendent may require for use in the department of instruction, and the preparation of all directions needed for giving and scoring euch tests and examinations . U. Purauing of special investigations or studies approved by the Superintendent In the field of educational and administrative research, and assisting principals in making research studies of achievement in the schools under their supervision. In addition to these duties, the division ia also called upon to edit the official publications of the department of instruction, to receive and hold for reference all applications for appointments tc positions, and to examine college credentials filed by applicants and teachers. The staff of the division consists of a director, three assistants, and two clerks, at present. The division has no separate office, but the staff occupy a corner of a large general office for the department of instruction.

40

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

The expenditures of the division, including salariée and the coet of test supplies, amount to Just over $20,000 a year. Milwaukee Population of the city: 578,21+9 Average daily attendance: 79,65k No bureau or department of research designated as such, but the work has been carried on by W. W. Theieen, assistant superintendent, since 1922. Although Milwaukee has never had a bureau of research officially so designated, yet the usual types of work assigned to a research bureau in other cities have been carried on in the office of an assistant superintendent ever since 1922. In that year, W. W. Theieen became one of the assistant superintendente of the Milwaukee Public Schools, having previously served as director of research in the Wisconsin State Department of Public Instruction and ae director of the Division of Reference and Research in the Cleveland Public Schools. The Rules and Regulations of the Board contain a section on the duties of a director of the Bureau of Reference, Research and Statistics, as follows: The Director of the Bureau of Reference, Research and Statistics shall have immediate charge of the work of compiling and maintaining a continuous school census and of compiling and directing the budget.14 However, the bureau was never actually brought into being. The school census has been part of the duties of the Secretary of the Board, while the compilation and direction of the budget has been one of the responsibilities of the assistant superintendent's office. These responsibilities, according to Dr. Theieen's report, include the following: (l) building program, (2) budget, (5) testing program, ( Ό guidance, (5) attendance, (6) publicity, (7) statistical studies, (8) curriculum studies, and (9) charge of the Child Adjustment Conference. The cost of the research service is not separable from the general costs of administration and instruction, but an estimate of the expenditures in connection with the office of the assistant superintendent in charge of these functions Is about $13,000 a year.15

DESCRIPTION OF THE BUREAUS

41

San Francisco Population of the city: 65U, 59I+ Average dally attendance: 65,^10 Official name of bureau: Bureau of Research Date of establishment: 192k Name of present director: Lillie L. Bowman The bureau was first organized in 1924 and named the Department of Service, this title being considered more descriptive of the general functions in which it was to engage, and likely to be better understood and appreciated by the public, than the name research bureau. Jesse D. Burks was appointed its first director, and continued in office till I928. With the appointment of Robert F. Gray as director in I928, the name of the bureau was changed to that of the Department of Educational Research and Service. At that time the staff of the department included four assistants besides the director, and the range of activities included: 1. Tests, measurements, and classification of pupils 2. Curriculum revision 3. School building problems U. Administrative research 5. Attendance statistics 6. Miscellaneous studies 7. Answering of questionnaires16 In 1952 the staff was reduced to two assistants besides the director, while the name was again changed, this time to the Bureau of Research, Adult Education, and Evening Schools. The range and diversity of the activities was even more extended, including : 1. Compilation and interpretation of annual, federal, state and city reports. 2. Compilation and interpretation of enrollment and attendance statistics. 3 . Boundary surveys. 1+. Personnel research. 5. Curriculum construction and revision. 6. Mental and achievement surveys. 7. Administrative surveys and studies.

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

θ. Test construction. 9. Training of teaching staff in construction of objective testa. 10. Training of teaching staff in utilization and application of the results of standard teste. 11. Publication of research bulletins. 12. Supervision of adult education. 13. Supervision of evening schools. 14. Supervision of Americanization. 15. Compilation of non-resident pupil lists .17 A separate Director of Curriculum having been appointed in 1935, the responsibility for curriculum revision was eliminated from the bureau. In 1939 the director became Deputy Superintendent in charge of Adult Education and the Bureau of Besearch, leaving the Bureau of Besearch in charge of a supervisor. The supervision of adult education and evening schools is thus separated from the duties of the bureau. The present staff of the bureau consists cf the supervisor in charge, a psychometriclan, and two clerical assistants, besides a temporary staff of approximately three full-time workers . The total expenditures of the bureau for a year amount to $17,500. Philadelphia

Population of the city: 1,950,961 Average daily attendance: 2U8,106 Official name of bureau: Division of Educational Besearch and Besults Date of establishment: 1925 Name of present director: Philip A. Boyer. On November 26, 192k, the Board of Public Education approved the recommendation of thertiperintendentfor the appointment of a director of educational results. The appointment was made In September, 1925, of Philip A. Boyer as director of educational research and results, whose duties were to include the following :

DESCRIPTION OF THE BUREAUS

43

1 . To c o l l e c t and study educational s t a t i s t i c s and d a t a . 2. To prepare the f a c t s and data In a form avallatole f o r publication. 3. To conduct a l l kinds of achievement and mental t e s t s . U. To study the v a r i o u s phases of school o r g a n i z a t i o n . 5- l b make recommendations on the c l a s s i f i c a t i o n of p u p i l s . 6. To study the problem of attendance. 7 . To study the progress of p u p i l s through the g r a d e s . 8. To d i r e c t improvement of i n s t r u c t i o n by a study of r e s u l t s In each branch. 9. To study the e f f e c t and value of e d u c a t i o n a l and vocat i o n a l guidance. 10. In g e n e r a l , to make a c o n t i n u a l survey of the work of the schools.18 The d i r e c t o r entered upon h i s d u t i e s with the help of two c l e r k s assigned to the d i v i s i o n . In June, 1927, a s p e c i a l a s s i s t a n t was added to the s t a f f to work i n the f i e l d of element a r y education, and in A p r i l , 1928, a second a s s i s t a n t was appointed to work in the f i e l d of secondary education. During 1929 and 1930 three supervisors were appointed to the d i v i s i o n , and the c l e r i c a l s t a f f was increased to n i n e . In 1933» personnel was again reduced by the t r a n s f e r of two s u p e r v i s o r s and three c l e r k s to other departments. During the school year I936-I937, the work of the D i v i s i o n was studied in connection with the Survey of the P h i l a d e l p h i a Public Schools under the d i r e c t i o n of Dr. George A. Works, of the U n i v e r s i t y of Chicago. The s e c t i o n of the r e p o r t d e a l i n g with the D i v i s i o n of Educational Research and R e s u l t s was w r i t ten by LeRoy A. King, of the U n i v e r s i t y o f Pennsylvania, and went into considerable d e t a i l regarding the f u n c t i o n s and achievements of the d i v i s i o n . The present s t a f f of the d i v i s i o n c o n s i s t s of the d i r e c t o r , two s p e c i a l a s s i s t a n t s , and s i x c l e r k s . The annual expenditures of the d i v i s i o n averaged $31,598.67 f o r the year Ι926-Ι936. 1 9 Chicago Population of the c i t y : 3,376,^38 Average d a i l y attendance : U35,387

44

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Official name of bureau: Bureau of Research and Building Survey Date of establishment: I928 Name of preaent director: Don C. Hogera AB early as 1899 the Chicago Public Schools had a bureau, one of the functions of which was the application of "accurate scientific methods to specific pedagogic problems, particularly

methods of teaching, and determination of the pedagogic value 20 of various studies." This was the Department of Child Study and Pedagogic Investigation, of which Dr. Fred W. Smedley was the first director. A series of three reporta published between 1899 and I9OI contained results of anthropometric meaaurementa of school children, determination of the aize of the deak best aulted to pupils of different gradea, and atudiea in apelllng, reading, writing, and memory for numerals and for ldeaa. Upon the death of Dr. Sfcnedley in 1904, D. P. MacMillan waa appointed director, and the work of the department was gradually expanded to include a guidance center in one of the Junior high achoola, a personnel program for elementary school children in one of the experimental schools, and service in the boys' and girls' parental schools. later the bureau was named the Bureau of Child Study and Educational Besearch, and then simply aa the Bureau of Child Study, and "with few exceptions, the aervicea of the Bureau were limited to the examination of handicapped children for placement in the special divisione and achoola."21 The preeent director of thé bureau ia Grace E. Munson. The staff consists of: a director, a medical examiner, a psychologist and pediatrician, a speech pathologist, and thirty-three psychologists. About 9,000 individual examinations are given during a year's period, of which about 1,000 are given within the bureau, and the remainder by psychologists sent to the schools. In view of the fact that the Bureau of Child Study haa now reatricted Ita activltiea to a specific field of service, and discontinued the study of general educational problema, it has not been Included In the group of bureaus that form the subject of the present inquiry.

DESCRIPTION OF THE BUREAUS

45

Another 'beginning was made toward the establishment of a bureau devoted to educational research when, in 1917, a Department of Educational Standards, Measurements and Statistics was created. The functions of this department, according to the report of S. B. Allison, assistant superintendent in charge of the department, were: first, to study problems in economy of organization and school administration, and to assist in providing ways and means for bringing the classroom work to a high standard of efficiency; second, to institute Investigations which will throw light on the cases of retardation of pupils and to assist in the classification and readjustment of school conditions to njeet the needs of the varied types of children; third, to provide comparative estimates of the educational value of studies pursued by the pupils, and to recommend the adjustment of time schedules and programs with relation to the same; fourth, to make careful study of reports and statistical forms that are in use in the public school system, and to provide for such revision as will correct defects, give intelligent statement of conditions, and provide data that will be of interest to the public; fifth, to collect tod collaborate reports regarding the organization, management and operation of système of schools In other cities, home and foreign, as a means of assistance in determining our own educational policies; sixth, to provide rational means for testing and measurlpg the values of work in the various grades of the schools; seventh, to collect and placd in organized form the best thought of educational writers and to place the same in form for publication and distribution to the members of the Educational Division.22 The work done by the department during the first year included: revision of teachers' record books; standardization of marking of teachers by principals and supervisors; study of grade progress of pupils; and subject failures in the elementary and high schools.

46

EDUCATIONAL RESEARCH IN IIAJOR AMERICAN CITIES

Within a few years, title department vae apparently discontinued, and no organization of a similar nature or purpose existed In the system until 1928. The present Bureau of Beeearch and Building Survey vas established In 1928, taking over the functions of a bureau of building survey vhioh had been organized in 192U and had become Inoperative after the resignation of its director in 1927. Don C. Rogers was appointed director of the new bureau, with an assistant director assigned for building survey. In 193^ another assistant director was appointed to look after the control of textbooks, which also became one of the main functions of the bureau. The organization and functions of the bureau, as of January, 1937, was thus described by the director in a letter to Dr. LeBoy A. King, who was engaged In the Philadelphia school survey at that time : The Bureau of Beeearch and Building Survey in the Chicago Public Schools system deals primarily with school buildings and textbooks, and very little with instructional research. Die director is a staff officer reporting directly to the Superintendent of Schools. In respect to its two primary functions: Our bureau deals with reconmendatlons for the construction of new buildings, additions, alterations, Including size, facilities, review of all floor plans, the selection of sites, and the establishment of standards for playground areas, portables, traveling, distances to and from school, facilities per" teacher or per child, studies of birth rate trends, spot maps, glass breakage, maps, school district boundaries, vacant rooms, half-day or extended day sessions, and other phases of pupil housing. We also are in complete charge of textbooks - their purchase, quotas for use, inventory and accounting, rebinding, requisitions, bidding, budget making - including also library books, reference books, maps, charte, globes, seat work material and tests.23 As constituted at present, the personnel of the bureau consiste of: One director One assistant director of building survey

DESCRIPTION OF THE BUREAUS

47

One assistant director of textbooks One superintendent of textbook depository Seren clerks Five took auditors Two book handlers The bureau occupies two rooms in the central office of the Board of Education: one for the director and the assistant director of building survey, and the other for a textbook sample library, with an office Cor the assistant director of textbooke. The textbook depository is separately located in another part of the city.24

Chapter I I I FUNCTIONS AND ORGANIZATION The functions of a c i t y echool research bureau have not a l ways been clearly defined in o f f i c i a l documents. In some cases they are eet forth in the by-laws or regulations of the school board; in others they are outlined in the school board minutes at the time of the bureau' β establishment; and in s t i l l other cases they are found mentioned in the annual reports of the superintendent. Where the functions of a bureau have not been defined in any of these documents, they can only be inferred from the services actually performed by the bureau as reported by i t s director. Functions Defined in O f f i c i a i Documents Nev York. Of the bureaus whose functions have been defined in the o f f i c i a l documents of the echool board, New York furnishes an example of such definition in the by-laws of the school board. 1 A f t e r the merging of the s t a t i s t i c a l division with the original Division of Reference and Research, the bylaws were accordingly revised. Section 21 of the revised ByLaws, as adopted in 1927, reads: a. The Bureau of Reference, Research and Statistics shall investigate and report upon a l l matters referred to i t by the Board of Education or by the Superintendent of Schools. A l l administrative duties shall be performed under the direction and supervision of the Superintendent of Schools. b. The Bureau shall c o l l e c t , record and analyze such stat i s t i c s as the Superintendent of Schools may authorize or require, and f o r such purpose shall prepare and issue such blanks and forms of reports as he shall prescribe or approve. c. Oie Bureau shall also, as f a r as may be feasible, supply educational data and Information to members of the teaching and supervising s t a f f and to the general public. d. Hie director and those delegated by him shall have

FUNCTIONS AND ORGANIZATION

49

access at all reasonable times to the books and records of the schools and of the several offices and bureaus In the Board of Biucatlon. e. The director may Issue for publication such reports as may be approved by the Superintendent of Schools and the Board of Education. f. Subject to the approval of the Board of Education, the Superintendent of Schools shall have power to assign to the Bureau of Reference, Research and Statistics for a period not to exceed six months at any one time, members of the teaching and supervisory staff for purposes of special Investigation and study.2 St. Louis. The duties of the Division of Tests and Measurements in St. Louis specified In the Regulations of the Department of Instruction, are as follows: The Division of Teste and Measurements shall aid the schools In all matters relating to the testing of pupils. The specific duties are: (1) lb give individual mental tests to pupils recommended by the school principal, and also to examine children brought by parents, or others having a recognized responsibility for them. (2) To prepare for the Superintendent all data needed for the assignment of children to the special schools for backward pupils; and to keep a record of all examinations made as a basis for such assignments. (3) To prepare or recommend such examinations and tests as the Superintendent may require for use in the Department of Instruction; and to prepare all directions needed for giving and scoring such tests and examinations. (k) To pursue special investigation or studies approved by the Superintendent in the field of educational and administrative research; and to assist principals In making research studies of achievement in the schools under their supervision.3 Boston. The purpose in the establishment of the Department of Educational Investigation and Measurement in Boston was

50

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

stated, in the minutes of the Boston School Committee.4 The functions of the department, accordìi^ to this statement, may be thus specified.: (1) To promote the investigation and professional study of school problems; (2) To develop standards of achievement in the various subjects and grades of school work; (5) To develop a system of promotion of teachers after appointment on the basis of merit; and

(b) To conduct independent investigations under the superintendent and the School Committee. Detroit. The statement of the work of the Detroit bureau, as contained in the superintendent's annual report, is an example of preciseness in the definition of a bureau's functions.6 Throughout the changes in organization and personnel, the four primary functions of (l) research, (2) standardization, (3) statistics, and (U) reference, have remained as the main objectives of the system in the establishment and maintenance of its research bureau. C l e v e W h e n the Division of Reference and Research was established in Cleveland, its duties were detailed in the board proceedings.® In 1923, the duties of the division were outlined in a bulletin from the Superintendent's office in the following terms: (1) Detailed study of school problems that may be assigned by the Superintendent or undertaken with the Superintendent's approval. (2) Preparation of all reports in the Educational Department. (3) Application of standard tests. Hie division will render aid in giving standard teste, and will arrange with supervisors and principals for cooperative testing. Returns will be made and results will be summarized and reported through this office. (V) Exchange of information on research studies or new types of work undertaken by teachers, principals or supervisors. Studies under way or contemplated should be reported to this division.

FUNCTIONS AND ORGANIZATION

51

(5) Organization and preparation of the fiscal budget for the Department of Eduoitlon.7 At present there la a separate bureau for child accounting and statistics, and the preparation of the school budget is aleo no longer a function of the research bureau. Philadelphia. The functions of the Division of Educational Research and Results in Philadelphia were outlined by the superintendent of schools in a statement to the members of the Committee on Elementary Schools, as follows: The main object of such a bureau or division is to bring about a constant study of educational conditions throughout the city, and to furnish.information and suggest plans for improving the instruction and discipline of the schools. Ihe chief duties of the director would be the following: (1) To collect and study educational statistics and datà, so that proper inferences and conclusions may be drawn for the guidance of the superintendent in his recommendations to the Board regarding educational policies. (2) To prepare the facts and data in a form that would be available for publication for the information of the taxpaying public. (3) lb conduct all kinds of achievement and mental tests throughout the school system. (4) To study the various phases of school organization, such as the teaching load, time allotment for the various studies, and other problems which affect the efficiency of instruc tion. (5) To make recommendations on the classification of pupils. (6) To study the problem of attendance with the Idea of discovering the causes of non-attendance and of suggesting ways of relieving the same. (7) To study the progress of pupils through the grades. For Instance, if, by a study of our methods of promotion, it could be found possible to save a term for a hundred children a year throughout the city; the money saving which would result from this saving would more than equal the amount expended for the salary of such a director.

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

(8) To direct Improvement of instruction by a study of r e sulte in each branch, e . g . , arithmetic, spelling, geography. ( 9 ) To study the e f f e c t and value of educational and vocational guidance. (lO) In general, such a division would be making a continual survey of the work of the schools. This is very much better than having a periodical survey made by outside peoû pie whose findings are obsolete before they are printed. Functions I n f e r r e d from A c t i v i t i e s

Reported

Baltimore. The a c t i v i t i e s of the Baltimore bureau, as r e ported in I933, are l i s t e d under four major heads, as f o l l o w s : (1) Instructional service. This consists o f : a. Planning, directing, administering a continuous series of testing programs and follow-ups; b. Preparation of materials of instruction such as courses of study, tests, and practice materials; c. Cooperative conferences and projects with principals, supervisors, and other administrative o f f i c e r s in making use of test results. (2) Administrative service. This consists o f : a. The compilation of child s t a t i s t i c s to make possible i n t e l l i g e n t administration of the school system; b. Financial accounting; c. Professional examination of candidates f o r teaching positions. (3) Publications. This consists of the preparation of regul a r and special reports, the dissemination of information to the members of the school system, and the publication of the findings of the Bureau. (U) Reference and reporting. This consists of the preparation of a continuous l i s t of special investigations and re' Q ports inherent in the operation of the school system. San Francisco. The a c t i v i t i e s of the San Francisco bureau, as reported f o r 1936-1937» are summarized under the following heads : ( l ) Conçilation and interpretation of annual, f e d e r a l , state and c i t y reports.

FUNCTIONS AND ORGANIZATION

S3

(2) Compilation and interpretation of enrollment and attendance statistica. (3) Boundary surveys. (U) Personnel research. (5) Evaluation of ability and achievement through testing program. (6) Administrative surveys and studies. (7) Test construction. (8) Training of teaching staff in construction of objective tests. (9) Training of teaching staff in utilization and application of the results of standard tests. (10) Publication of research bulletins. (11) Supervision of day adult education. (12) Supervision of evening schools. (13) Compilation of bibliographies and digests. (lU) Assisting at educational conventions.10 Since July, 1939» the supervision of adult education and evening schools has been eliminated from the activities of the bureau. Chicago. The activities of the Bureau of Research and Building Survey in Chicago are thus described in the superintendent's annual report for 1937-1938: The Bureau of Research and Building Survey operates directly under the Superintendent of Schools but acts as a liaison between the Educational Department and the Business and law Departments in respect to buildings, textbooks, and libraries. This bureau cakes scientific studies and collects data upon which the superintendent bases his recommendations to the Board of Education for the purchase of school sites, the construction of new school buildings and additions, adjustment of school district boundaries, the opening and closing of branches, and innumerable other matters relating to the school plant. The bureau also supervises the purchase of textbooks, library books, maps, reference sets, seatwork material, periodicals, and tests; the preparation of approved lists of text-

54

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

•book materiale; the operation of a textbook depository; the operation of a W.P.A. book bindery; the administration of a uniform system of textbook accounting and inventory; the maintenance of a sample library of all textbooks and library books on the approved lists; and the preparation of the annual textbook fund budget totaling over $1,000,000.11 The miscellaneous nature of the work of this bureau may be seen from another account in a previous annual report: The Bureau of Research and Building Survey has participated in a wide range of general duties, a sample of which is as follows: (1) Meeting delegations of citizens wanting a new building, an addition, a boundary change, landscaping, rehabilitation, or some other improvement of their local school. (2) The inspection of scores of school buildings regarding fire hazards, requisitions for building improvements, and other phases. (3) Adjustment of office space in th9 administration building. (U) The collection and preparation of many spot maps used in boundary adjustments. (5) Collection of data through questionnaires. (6) Preparation of a semi-annual comprehensive study of all school buildings in the city, indicating shortage or surplus of housing accommodations, number of divisions and other pertinent data. (7) Collaborating in the preparation of an official city map showing schools and school board property. (8) Participation in a survey of the thirty-three high school buildings and their twenty-three branches. Securing their physical improvement (a) providing better service to the students, and (b) placing these buildings above criticism from inspection from accrediting agencies,12 Los Angeles. The activities of the Los Angeles Division of Psychology and Educational Research were reported in 1931 under six sections: (l) High school research and guidance; (2) Secondary school curriculum development; (3) Elementary research and guidance; (4) Special schools and classes (including

FUNCTIONS AND ORGANIZATION

SS

nursery school and parent claeses); (5) Psychological clinic; (6) Statistics.13 At present, the functions of the Educational Research and Guidance Section, as reported by its supervisor, consist of the following: (1) Research called for by the superintendent, the assistant superintendent and other special departments. (2) Testing program of the entire school system from the kindergarten to the City College. (5) Direction and supervision of guidance program in high schools. (4) Construction of tests and other evaluation Instrumenta ; as interest questionnaires, cumulative records, repòrt forms, etc. (5) Fostering mental hygiene in schools through study groups and work shops in which teachers and principals participate. (6) Statistical work for schools and administrators. (7) Child guidance for children and youth having behavior or scholastic difficulties. (8) Selecting candidates for all typea of special classes and schools.14 In Milwaukee, the assistant superintendent who has charge of research and other activities reports the following functions for his office: (1) Building program. (2) Budget. (3) Testing program. (4) Guidance. (5) Attendance. (6) Publicity. (7) Statistical studies. (8) Curriculum studies. (9) In charge of Child Adjustment Conference.15 Pittsburgh. Ho official statement of functions or report of activities has been published by the Pittsburgh bureau, but the director reports the following types of activities for himself and his staff: (l) curriculum study, (2) testing,

56

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

(3) research, (4) public relatione, (5) editorial work, (6) miscellaneous. Other Services Performed by Bureaus In addition to these functions and activities specified or reported, it has been found that each bureau has at Tarions times also performed many services not explicitly Included in such announcements. The following account of additional services rendered by the bureaus is not intended to be exhaustive, but merely to illustrate the multitudinous nature of the duties and assignments that are carried out in the different bureaus.16 The New York bureau has each year since 1919 participated in the preparation of the budget estimate for the superintendent of schools and the Board of Education. It has also supplied figures on registrations and other data to the Bureau of Finance, for the purpose of cost accounting and for the computation of state moneys. It has cooperated with the Bureau for Children with Retarded Mental Development in the segregation of such children on the basis of their intelligent test records. Through its Division of Tests and Measurements, the New York bureau has rendered the following types of services to the schools : (1) Conducting of city-wide testing programs in various subjects in the elementary and Junior high schools. (2) Giving of special tests for the grading and classification of pupils. (?) Giving of tests in connection with special projects, such as for the appraisal of various instructional and administrative procedures. (4) Selection, construction, and standardization of tests, in cooperation with the Division of Instructional Research. (5) Advice to principals, teachers and others In the "selection and use of tests. (6) Selection and training of teachers to act as local official examiners. (7) Acting for the superintendent in the approval of requisitions for test materials ordered by the schools.

FUNCTIONS AND ORGANIZATION

57

(8) Review of the approved textbook liete for the purpose of discontinuing the listing of tests not suitable or not needed for the schools. (9) Preparation of bulletins on educational measurement. Through its divisione of Instructional and Curriculum Research, it has served the schools In the following respect: (1) Organization of experimental centers for the diagnostic, remedial, and other studies of reading in the intermediate grades. (2) Construction of certain tests and scales for the evaluation of achievement in school subjects and other factors. (3) Preparation of rating forms for evaluating the services of psychologist and teachers in the system. ( Ό Granting of permission for outside individuals to conduct research or testing projects in the schools. (5) Organization of a curriculum library, consisting of sample textbooks, courses of study, and other materials. (6) Preparation of bibliographies and digests of current literature on various topics. ( 7 ) Service on various committees and participation in consultations with superintendents, principals, and others. In St. Louis, the Division of Tests and Measurements, in addition to those functions officially assigned, has also edited the official publications of the Department of Instruction; received and held for reference all applications for appointments to positions in the school system; and examined college credentials filed by applicants and teachers. In Detroit, the bureau has had the responsibility of organizing the annual educational conference held each spring since I 9 I 9 , at which the members of the teaching, supervisory and administrative staffs of the Detroit schools present reports of their professional studies made during the year. The directors and assistant directors have also lectured at the municipal university, and have guided their graduate students and others in conducting research. The bureau has also cooperated with various consnlttees on research projects and curriculum studies. The assistant director for administrative research has spent

58

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

a large portion of hie time in research and. observation connected with school legislation In the state legislature. He has conducted various studies in school finance; personnel problems in connection with teachers' salaries, teachers' absence and substitute service, retirement and pension plans, and various proposals for teacher velfare; as veil as analyses of school costs in Detroit in comparison with other cities. A member of the staff has charge of the editorial and routine work in connection with all publications of the system, including courses of study, tests, various bulletins and circulars, as well as blanks and forms used in the entire system. The Boston bureau began the giving of group intelligence tests in I92I, and the study of Individual problem cases in 1929. The giving of group intelligence tests and the study of individual problem cases constitute the main activities of the bureau at present. Occasional studies are made for the Board of Superintendents, and the bureau goes through the usual routine of answering questionnaires sent to the system by outside persons and educational institutions. The Cleveland bureau reports among its activities for 1938I939, the following items not specifically mentioned before among its assigned duties: (l) construction of tests in cooperation with committees of teachers and supervisors; (2) evaluation of textbooks in cooperation with various committees; and (3) editorial work on some science units for tha Junior high school. The Philadelphia bureau in recent years has taken up th9 study of various problems related to school accommodations and the budgeting of teacher needs. There are also reported activities in the giving of occasional talks to school and community groups. Suonar}· of Functions The functions of the different bureaus, whether defined in official documents 01* Inferred, from their activities^ may t>e classed under five major headings:

FUNCTIONS AND ORGANIZATION

59

1. Functions connected with testing and measurement. This le one of the moat frequent functions assigned to a bureau. With the exception of Chicago and St. Louis, all the bureaus have the responsibility of conducting city-wide surveys or testing programe, including the testing of mental ability and achievement in one or more of the school subjects. Detroit has in recent years left the testing to the schools on a purely voluntary basis. St. Louie has always left the testing to the initiative of the schools, the bureau being ready to give all necessary technical assistance when required. In addition to the administration of tests, one of the functions frequently given to the bureau is the construction of tests for use in the local systems. Some of the bureaus are entrusted with the duty of recommending or approving tests for use In the local schools. Several bureaus make special efforts to train teachers in the administration of tests and the utilization of test results. Individual testing Is done in some of the bureaus, primarily in connection with the study of problem cases, or for the purpose of recomnendlng the assignment of certain children to special classes or schools. 2. Functions connected with the compilation and publication of statistical and other data. This group of functions Includes the compilation of all types of school statistics; the preparation of record and report forma; the interpretation of statistical data on attendance and progress of pupils; the preparation of reports to federal, state, and other agencies; and the publication of the annual report and other nuterials for the system. J. Functions connected with the supplying of information to school officers and others. Without exception the bureaus are required or expected to supply all kinds of information to the school boards, superintendents, and other administrative officers. Some of them are also constituted to supply information to the public at large concerning the local school system, and even concerning educational matters in general. The officers in certain bureaus are often called on to assist on conferences for consultation, and to lecture or speak at public meetings on behalf of the schoole.

60

EDUCATIONAL RESEARCH IN UAJOR AMERICAN CITIES

U. FunetIona connected with the atudy and investigation of various typee of problema. All the bureaus are empowered to conduct various studies either at the request or with the approval of the superintendent. These studies as conducted cover a wide range of areas, such as the budget and costs; school sites and buildings ; the teaching personnel; the curriculum; methods of Instruction; pupil adjustment and guidance; and general problems of administration and Instruction. 5. Miscellaneous functions connected with the administration of a school system. Among the functions of this type assigned to different bureaus are : the receiving of applications and the preparation of examinations In connection with applications for teaching positions; preparation of the school budget; assignment of children to special classes and schools; supervision of the guidance programs In the schools; fostering of mental hygiene among the teachers; direction and assistance of the bureau at educational conferences; preparation and revision of approved lists of textbooks, and other materials; approval and inspection of school buildings; and the administration of textbook control. Table IX shows the assignment of various functions to each of the bureaus Included in this study. Organization of the Bureaus In relation to the school system as a whole, the bureau entrusted with the research function is generally one of a number of bureaus or departments under the direction of the superintendent of schools. Other bureaus or departments closely related, or parallel, to the research bureau, as found In the different systems, are: Attendance Attendance and census Compulsory attendance Child accounting And statistics Educational statistician Psychological clinic Psychological examiner Child guidance

Table DC Functions Assigned t o , or S e r v i c e s Performed b y , Each of the TveIre C i t y School Research Bureaus* Function or s e r v i c e

Assigned to or performed by bureau** Ba Bo Ch C l De LA Ml NY Ph PI SL SF*

Testing and measurement: City-wide t e s t i n g program

X X X - X X X X X X X X X X

Construction of t e s t s Recommending or approving t e s t s

x -

Training teachers In testing Training teachers In u t i l i z a t i o n of t e s t results Giving I n d i v i d u a l t e s t e

-

-

-

— X x

-

x

-

χ

x

x

-

— — — X

-

-

-

x

-

-

x

-

-

-

x

-

-

-

x

-

x

-

X

x

x

— — XX —

x

-

χ

-

χ

-

-

x

x

-

-

x

-

χ

xx -

-

-

-

χ

x

-

S t a t l a t l c s and r e p o r t s : Cojnplllng school e t a tletlcs

X - - - X X X X X X

Preparing r e p o r t forme

x - _ - - - - x x

I n t e r p r e t i n g data on a t tendance and p u p i l progress

-

Heports to f e d e r a l , s t a t e , and other agencies Editing and publishing school reporte

χ

-

x

-

-

-

-

-

-

-

ι

-

x

-

-

-

χ -

x

x

-

-

* In t h i s and i n c e r t a i n subsequent t a b l e e , the names of the bureaus are uniformly abbreviated to the f i r e t two l e t t e r s or I n i t i a l s in the names of the c i t y ; e . g . , Ba f o r Baltimore, NY f o r New York. *» The f u n c t i o n s assigned to the bureaue are i n d i c a t e d by x x ; those performed by the bureaus are i n d i c a t e d by x . 61

Table DC Funetlona Assigned t o , or Services Performed, by, Bach of the TVelTe City School Research Bureaus (Cont'd) „ Function or service

Assigned to or performed by bureau -—_ * — Ba Bo Ch Cl De ΙΑ Ml NY Ph PI SL SF

Reference and Information: Supplying Information to school o f f i c i a l e

x x x x x x x x x x x x x x

Supplying Information to public

π

-

ϊ

π

-

χ

-

Assisting at conferences and committees f o r consultation

X

-

-

-

X

-

X

X

X

-

-

-

Lecturlng and public speaking

x

-

-

-

x

-

x

-

x

-

-

-

Studles and Investigations : Covering a l l types of school problems

- x x - - x x - x - x x - x x -

Requested by school officials

x x x x x x x x x x x x x x x

Approved by superintendent

- X X - X X

-

-

-

-

-

x

x

-

-

XX

-

.

-

School l e g i s l a t i o n School finance and costs

x

-

School sites and buildings

x

-

XX -

x - -

-

X -

-

-

X - - X

Teaching personnel Curriculum studiee Methods of Instruction Pupil adjustment and guidance Publication of research studies

χ

-

-

x x

-

x x x x x

-

-

_ - . . χ - - χ χ χ _ . _ - x - - - x x - x x

-

Χ - - Χ - - Χ Χ Χ Χ Χ Χ 62

Table

H

Functions Aasigned, to, or Services Perforn»d by. Bach of the Twelve City School Besearch Bureaus (Cont'd) Function or service

Aaelgned to or perforad by bureau BaBoChClDeLAMlNYPhPiSLSF

Studies and Investigations (Cont'd): Preparation of bibliographies and digests Assisting teachers and others in research

- - . . . . - χ .

. . χ

x - - x x x - - x x x x x -

MlscellaneouB functions : Receiving applications for teaching positions Preparing examinations for teaching applicants Arranglng system for· promotion of teachers Preparation of school budget Assignoent of children to special classes and schools

- - - - - - - - - -

-

x - - - - - - - - - - i n -

-

-

-

-

-

X

X

-

-

-

-

- - - - - X - X - - X X -

Supervlsion of guidance in schools

1 1

Fostering mental hygiene in schools Direction and assistance at educational conferences Preparation of approved lists of textbooks and materials

- xx

Inspection of school buildings

- xx

Administration of textbooks

χ

- xx 63

64

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Child study Children with retarded mental development Education for exceptional children Special classes Special education Curriculum Elementary curriculum Secondary curriculum Citizenship and social studies Counseling and guidance Guidance Guidance and placement Vocational guidance Occupational research Night schools and attendance Adult education and evening schools Extended use of public schools Municipal recreation and adult education School extension Books, supplies and equipment Publications In seven of the twelve research bureaus, the officer in charge is given the title of director. In Cleveland, the title is chief of the bureau. In two cities, Los Angeles and San Francisco, the title is supervisor. In Detroit, it is supervising director. Ih Milwaukee, where there is no formal organization of a bureau or department, the officer who has charge of the research function is one of the assistant superintendents . These varying titles seem to have sons bearing on the line of direct responsibility between the bureau and the superintendent. Six of the seven officers with the title of director are responsible directly to the superintendent of schools. The director in Philadelphia reports through one of the associate superintendents, who has charge of special education and supplementary services. The chief of the bureau in Cleveland is directly responsible to the superintendent. The supervisors In charge of research in Los Angeles and San Francisco are respon-

FUNCTIONS AND ORGANIZATION

65

alble in each instance to a deputy superintendent. The deputy superintendent in charge of adult education and research vas the director of research until a recent change in personnel realignient placed him in a position coordinate with other deputy superintendents and a step removed from the bureau of which he still has charge. The supervising director in Detroit represents a similar realignment some years ago. Under him at present is a director in charge of one of the divisions within ths bureau. Tibie X shows the position of each of the bureaus in relation to the respective school systems. Functional Divisions Within the Bureaus The internal organization of the bureaus varies with the complexity of its functions and the size of its personnel. The simplest fora is that of Milwaukee, where the assistant superintendent in charge of research has the help of two assistants and a clerk. One of the assistants is called a research assistant, while the other is designated assistant for the welfare office connected with the same assistant superintendent's office. The Seua Francisco bureau has a total staff of five: the deputy superintendent in charge, the supervisor, one assistant and two clerks. St. Louis, Boston, Cleveland and Philadelphia, with total staffs of from six to nine persons each, are all without an assistent director. Pittsburgh has an assistant director, and Los Angeles four assistant supervisors, but neither bureau has any other assistants except the clerical worker«, and, In the case of Pittsburgh, a librarian. Baltimore has an assistant director and two research assistants, besides three clerical workers. Chicago has two assistant directors and a superintendent of the textbook depository, with a total of fifteen other persons of a clerical or non-professional nature. In all these bureaus where the staff consists of more than one professional worker, there is generally some division of responsibility within the bureau, but the lines of division are often flexible, and subject to modification with changes In personnel or caused by other circumstances. The assistant director In Pittsburgh at present has charge of the testing

Dable Χ Position of the Research Bureau In the Organization of the City School Systems

Bureau

Official title of head

Immediate euperlor officer

Parallel or related bureaus or officerà

Baltimore

Director

Superintendent Night school and attendance; special education

Boston

Director

Superintendent Attendance; vocational guidance; special classes; extended use of public schools

Chicago

Director

Superintendent Child study; curriculum; occupational research

Cleveland

Chief

Superintendent Attendance; child accounting and statistics; guidance and placement; psychological clinic

Detroit

Supervising Superintendent Attendance and census; Director guidance and placement; special education; psychological clinic

Los Angeles

Supervisor Deputy Super- Elementary curriculum; intendent in secondary curriculum; charge of In- education for excepstruction and tional children Guidance

Milwaukee

Assistant Superintendent

Superintendent Psychologist; special classes; municipal recreation and adult education 66

Dable Χ Position of the Research Bureau In the Organization of the City 3chool Systeme (Cont'd)

Bureau

Official title of head

Nev York

Direc tor

Immediate superior officer

Parallel or related bureaus or officers

Superintendent Attendance; child guidance; bureau for children with retarded mental development

Philadelphia Director

Assoclate Superintendent in charge of Special Education and Supplementary Services

Pittsburgh

Director

Superintendent Educational statistician; compulsory attendance; psychological examiner; guidance; citizenship and social studies

St·. Louis

Director

Superintendent Attendance; books, supplies and equipment

San Francisco

Supervisor Deputy Super- Attendance; curriculum intendent in counseling and guidcharge of ance ; adult education Adult Educaand evening schools; tion and Republications search

67

Compulsory attendance; special education; school extension

ββ

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

function; the one In Bai timore has charge of most of the other activities besides testing. Of the four assistant Supervisors In Los Angeles, two are psychologists, and. one Is a statistician, while the other attends to most of the detalle of the •bureau's activities. In Chicago the work of the two assistant directors Is clearly distinguished: one in charge of building surveys and the other In charge of textbooks. All the research assistante In Boston and St. Louis are engaged mostly In the administration of Individual tests. Those In Baltimore spend most of their time in connection with the routine of the city-wide testing programs. Of the two special assistante in Philadelphia, one is assigned to research activities in the field of secondary education, while the other has the duties in connection with studies in elementary education, as well as In school accommodation needs. The bureaus In Detroit and New York have the largest staffs and show the highest degree of functioned organization within the bureaus. The internal divisions of the Detroit bureau, with the assignment of duties and personnel for each division, is summarized as follows: Division of Instructional Research. His charge of the testing function, various research studies In the instructional fields, supervision of the annual educational conference, and representation on various committees in connection with curriculum and evaluation projects. Staff consists of a director, an assistant director, a teacher assigned to the division and two clerks. Division of Administrative Research. Statistics and Publications. Has charge of various administrative and legislative studies, the conciliation of statistics and the handling of publications for the whòle system, and the supervision of the reference library. Die staff consists of: an assistant director In charge of the division, a teacher assigned to take charge of the publication function, two clerks to assist In administrative research, threo clerks in at&tls'ics, and one in charge of the reference library. Division of Informational Service « Duties Include the prep· aration for publication of the superintendent1 β annual re-

FUNCTIONS AND ORGANIZATION

69

port, the Detroit Educational Neva, and various leaflets and pamphlets concerning the activities and services of the schools; the answering of inquiries for information lay correspondence or telephone; and the various phases of public relations for the echool system. The staff includes a first assistant in charge, with a teacher assigned, and two clerks, one of whom serves as a secretarial stenographer. A chart showing the internal organization of the Department of Research and Informational Service for the Detroit schools has teen given on page 30· The present organization of the New York bureau, dating from 1937, consists of the following functional divisions: 1. Administrative division -- direction, supervision and coordination within the bureau. 2. Division of curriculum research -- curriculum research and experimentation; curriculum laboratory; selection and organization of Instructional materials. 3. Division of instructional research -- research and experimentation in teaching procedures, the learning process, and the techniques of measurement. lt. Division of administrative research -- research in the fields of school organization, budget, and personnel. 5. Division of tests and measurements -- service to the schools in connection with the survey and appraisal of instruction and administration, and the classification of pupils. 6. Division of statistics -- compilation of educational statistics, child accounting and annual reports. 7. Reference division — informational service. 8. General office division — stenographic service; filing section; multlgraphing section; mailing room. Hie assignment of personnel to the different divisions is found in Table III, on page 23. The specific dutlee and functions assigned, to the divisions of curriculum, instructional and administrative research and for the division of tests and measurements, are as follows: Division of Curriculum Research: Functions 1. General To conduct a continuous program of research into the prob-

70

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

lema related to or Involved In curriculum construction and revision In the elementary schools. 2. Specific a. Studies of alms and objectives (1) Critical analyses and compilation of stated aime (2) Statements of philosophic and psychological principles (3) Formulation of aims and objectives b. Curricular content (1) Evaluation Setting up c r i t e r i a Critical analysis of existing courses of study (2) Selection and organization Teaching materials Textbook materials Construction of units of work Determination of minimi essentials (3) Studies in grade placement and time allotment c. Estimating of pupil registers f o r future periods -- a l l school levels d. Receipt and checking of budget requests θ. Scheduling budget committee hearings f . Attendance at hearings and reviews g. Compilation of revised and allowed requests h. Attendance at budget hearings of committee on finance of Board of Education 1. Attendance at hearings and conferences with budget director of city 3· Apportionment of budget funds -- f o r Superintendent of Schools 1*. Estimate of amounts of state and federal moneys — receivable during budget periods 5. Preparation of reports to state education department and to federal bureau of education 6. Preparation of annual reports of the Superintendent of Schools 7. Studies of departmental organization 8. Studies of class size -- teacher load 9. Studies of promotion of pupils -- progress of pupils

FUNCTIONS AND ORGANIZATION

71

Dlvlelon o f Teste and Measurements : Functions 1. Appraisal of Instructional r e s u l t s a . Conduct of city-wide p r o j e c t s in elementary and Junior high schools (1) Organizing (2) Directing or administering (3) Compilation of r e s u l t s (4) Analysis and interpretation (5) Eecoimiiendation and reports b . Conduct of d i s t r i c t p r o j e c t s and programs (1) Survey and appraisal (2) Dencnstration of t e s t i n g programs (3) Active assistance to a s s i s t a n t superintendents 2 . Grading and c l a s s i f i c a t i o n of pupils a . For grade placement — a b i l i t y sectioning b . Special problems 3. Specialized projects a . For appraisal of instruction and administrative procedures b. Follow-up U. Cooperative service in connection with the experimental work of Division of Instructional Besearch Division of Curriculum Research Division of Administrative Besearch 5. S e l e c t i o n , construction and standardization o f t e a t s a. Experimental try-out of objective t e s t a constructed by the Dlvlaion of Instructional Besearch b. Appraisal of r e s u l t s (1) Devising techniques and means f o r measuring outcomes (2) Setting up standards o. C r i t i c a l study of curriculum building — organization and methods d. Teacher guidance and training (1) Specific training of teachers assigned to s p e c i f i c projects (2) Preparation of b u l l e t i n s and reviews (3) Exhibits, e t c .

72

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES Division of Instructional Research: Functions 1. Experimental Investigation of problems concerned with learning processes a. Determining optimal methods for the guidance of slew learners b. Determining optimal methods for the guidance of rapid learners c. Establishing standards of expectancy d. Studying problems of educational guidance e. Analysis of learning difficulties 2. Experimental investigation of instructional procedures a. Evaluation of teaching methods b. Organizing methods of diagnosis and remedial teaching 3. Development of new instruments of measurement a. Construction of tests of achievement in school subjects -- selection and organization of content for experimental try-out b. Construction of rating scales for evaluation of various factors or situations Development of materials of instruction — practice tests and other teaching devices 5. Teacher guidance and training a. Training of teachers assigned - - i n specific techniques required in specific projects h. Supervision of schools used as experimental centers, etc. c. Preparation of bulletins and other material dealing with applications of research to improvement of instruction d. Guidance for teachers and others in undertaking Individual research projects e. Approval of investigations by outside agencies Division of Administrative Research: Functions 1. Preparation of departmental budget estimate a. Revision and preparation of budget forms b. Preparation of instructions to heads of activities o. Compilation of statistical and other data In re activities (1) Determination of validity and reliability (2) Determination of norms

FUNCTIONS AND ORGANIZATION

73

2. Advisory service and teacher training a. Consultant service fcr principals, teachers, et al -in re selection and use of tests b. Training of official examiners (1) Selection and training of teachers to act as local official examiners (2) Organizing local district committees and testing personnel c. In-eervice training of teachers (1) District conferences (2) Extension courses d. Publicity service (1) Preparation of bulletins on educational measurement (2) Preparation of bibliographies, etc.17

Chapter IV PERSONNEL,

EQUIPMENT

AND

EXPENDITURES

The personnel cf the bureaus awy be roughly classified, int a professional and a ncn-professional group. The former w i l l inolude the directors or heads cf the bureaus, assistant d i rectors, assistants of various gradee, and auch ether persons as psychologists, librarians, and teachers assigned to the bureaus f o r various duties. The l a t t e r w i l l consist of a l l other persons connected with the bureaus such as clerks, secretaries, stenographers, tabulating machine operators, and book handlers. The number and c l a s s i f i c a t i o n cf workers in each of the twelve bureaus are given in Table XI. Characteristics

o f Research Workers

For the purposes of this study, a l l workers in the professional group w i l l be considered as research workers. The distinction between workers in the bureaus who may properly be classed as research workers, and those who do not belong to that category, is very d i f f i c u l t to maintain. Actually, many of the workers included in the professional class are engaged in various types of routine a c t i v i t i e s not a l l connected with research. On the other hand, a great deal cf d e t a i l wjrk Is involved in a l l research projects, and c l e r i c a l workers who are given the work of tabulating, checking and preparing f o r presentation the results of studies, may very w e l l be counted as research workers. Hence, any study that is made of the chara c t e r i s t i c s cf the research workers in theee bureaus, on the basis of c l a s s i f i c a t i o n as here adopted, must be interpreted with the qualifications noted. Of a total of sixty-3even workers c l a s s i f i e d in the professional group f o r the twelve bureaus, certain information regarding age, sex, professional preparation and experience, ranΟ

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December 1920.) 2h pp. Moehlman, A. B. An analysis of the 1921-1922 budget requests of the Board of Education. (Research Bulletin No. February 1921.) 35 PP. Packer, P. C., and Moehlman, A. B. A preliminary study of growth in the Detroit public schools. (Research Bulletin No. 5, June 1921.) U6 pp. Spain, C. L., Moehlman, A. B., and Harrington, H. L. The intermediate school in Detroit. (Research Bulletin No. 6, December 1921.) Age-grade and nationality eurvey. (Research Bulletin No. 7, January 1922.) 28 pp. Moehlman, A. B., Thomas, J. F., and Andereon, H. W. An analysis of the 1922-1923 budget requests of the Board of Education. (Research Bulletin No. 8, February 1922.) 6U pp. The 1925 Detroit city census. (Research Bulletin No. 9, October 1925.) 2k pp. The effect of kindergarten attendance upon progress and quality of work in the grades. (Research Bulletin No. 10, November 1925·) 69 PP. Effectiveness of half-time sessions. (Research Bulletin No. 11, February 1926.) 70 pp. Rankin, P. T., ed. Proceedings of the Ninth Annual Educational Conference. (Research Bulletin No. 12, June 1927·) The last is a collection of twenty-two papers presented at the Ninth Annual Educational Conference by members of the Detroit teaching staff. The separate titles of the papers will give an Indication of the nature of their contents : Ayers, Dorothy. "Problem cases in the intermediate schools." Balrd, James. "Parallel programs in reading and arithmetic." Barnes, C. C. "Individual progress in history."

116

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Blanchard, C. W. "Problems In commercial education." Corrigan, Emmet. "A nev plan of homogeneous grouping." Courtis, S. A. "Measuring the effect of nature and nurture in growth." Crockett, A. C. "Vocational testing." Cunliffe, E. B. "Value of Detroit Advanced Intelligence Tests in prognosticating college success." Finch, Beulah. "Word associations and moral education." Hill, Arthur. "A study of delinquency classes." Kaufmann, H. J. "Resignations of Detroit teachers since 1920." Kepperling, Inez. "X, Y, and Ζ organization." Lessenger, W. E. "Mass individualized instruction in secondary education." McAdam, Grace P. "X and Ζ differences in domestic science." McCloy, C. H. "The athletic quotient; an anthropometricathletic accomplishment score." Mondor, Eugene. "Nationalism and historical truth in French, German, and English history textbooks." Eich, L. H. "Equipment and supplies for the schools." Shaw, Lena A. "The 1927 survey in handwriting." Smith, Mildred. "Use of slides in teaching geography." Smith, Nila B. "Matching ability as a factor in first-grade reading." Trybom, J. H. "Industrial mechanics for high schools." Wiles, L. A. "Detroit public school budgets." The Los Angeles bureau published eleven volumes of the Los Angeles Educational Research Bulletin between 1921 and 1932. These bulletins contained articles of general educational interest, as well as quotations and reprints from other publications, book reviews and reading lists, and news and general notices, besides devoting approximately half of their apace to research studies and reports. In 1929 and 1931, the bureau published two Yearbooks, which reviewed the history and organization of the bureau, reported the major activities of the different sections within the bureau, and gave a digest of the important research studies completed. The following is a list of the research studies reported in the Third Yearbook, published in 1929:

SOME PHASES OF ACHIEVEMENT

117

Clark, W. W. "An experiment in grading a n d classifying elementary schools." Pp. 91-95· Lewerenz, A. S. "Predicting ability in art." Pp. 96-97Baybold, Enana. "Beading readiness in children entering first grade." Pp. 98-101. Wooda, Elizabeth L. "Personality traits of children of superior intelligence in special classes a n d in regular classes." Pp. 102-09. Nettels, C. H. "Junior high school pupil load." Pp. I6O-68. Nettels, C. H. "Teachers' marks." Pp. 169-81." McAnulty, Ellen A. "A study of mental growth pattern in relation to rate of mental development." Pp. 182-86. The Fourth Yearbook published in 1931 contains a digest of a number of studies b y members of the staff, most of which had been published in the Los Angeles Educational Research Bulletin. The studies are grouped under eleven headings: 1. Science interests (three studies) 2. Adolescent interests (one study) 3. Penmanship ability of secondary school pupils (one study) U. Children's reading (six studies) a. Beading readiness in children entering the first grade b. Children and the public library c. Vocabulary difficulty of the new Stanford Achievement Beading Test d. Vocabulary grade placement of typical newspaper content e. Vocabulary divérsity f. Vocabulary interest 5. A study of reading tests 6. A n experiment in spelling 7. Elementary vacation school surveys (two studies) 8. Visual instruction (four studies) a. School accomplishmenfe in relation to movie attendance b. Use of photographic stills c. Tryout of movie scenarios a n d scratch prints d. Map-reading scale 9. School safety (three studies) 10. Art ability (two studies) 11. New tests (three studies)

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a. Orientation test 1). Word appreciation teat c. Group cooperation teet A number of printed reporte have been obtained from Milwaukee representing the research activities of that system. They may be classified under three headings: (l) reports of committees on school organization and facilities, (2) school building and altes programs, and (3) studies of school costs. The titles are given below: Report of the Committee on Junior High Schools. May 1928. 23 PP. Report of the special committee to study the need of a North Side technical high school. May 1931. 49 pp. A five year building and future sites program. January 1929. 104 pp. A five year school building and future sites program, 19361941. November 1935. 26 pp. "Are the Milwaukee schools economizing?" Informal Reporte to Parents, No. 1. 4 pp. "Are Milwaukee school costs too high?" Informal Reporte to Parents, No. 2. 4 pp. "The tax dollar: what portion are the schools spending?" Informal Reports to Parents, No. 3. 4 PP· "What does the school tax dollar buy?" Informal Reports to Parents, No. 4. 4 pp. "What the schools are doing to protect the child." Informal Reports to Parents, No. 6. 4 pp. "School enrollment and school finances." Informal Reporte to Parents, No. 7. 4 pp. The New York bureau has issued a series of Publications 'beginning in 1914, among which the following may be taken to represent the results of research work in that bureau: The school lunch service In New York City. (Publication No. 3, 1914.) 2a pp. A report on the assignment of principals, assistants to principals, and clerks In the elementary schools. (Publication No. 7, 1915.) 36 pp. A report on the organization of the Board of Education and its caanlttees. (Publication No. 10, 1915.) 110 pp.

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The school and the Immigrant. (Publication No. 11, 1915.) 96 pp. A n experimental Investigation of the took method, lecture method, and experiment method of teaching elementary science In elementary schools. (Publication No. 13, 1915.) The school assembly. (Publication No. 15, 1917.) 113 pp. A list of annotated references to current literature on the Junior high school. (Publication No. 17, 1919.) 51 pp. Pupila' progresa through the gradee. (Publication No. 19, 1922.) 169 pp. Diagnostic and remedial work In arithmetic fundamentals for Intermediate grades. (Publication No. 21, 1928.) 20h pp. Index to circulars Issued by the Superintendent of Schools, 1925-1930. (Publication No. 23, 1930.) k6 pp. Reylew of departmental experience In dealing vlth problems of school maladjustment. Part I. Statistical reference data showing school background conditions, factors, trends, and problems, 1930-1931*· (Publication No. 27, January 1936.) 215 PP. Review of departmental experience In dealing vlth problems of school maladjustment. Part II. Statistical reference data relating to problems of overageness, educational retardation, non-promotion, 193O-I93U. (Publication No. 28, July

1937.) 287 pp. The majority of the bulletins published by the Philadelphia bureau have been In mimeographed form, but a few printed bulletins were Issued between 1926 and 1933· Annual reports of the bureau were also printed between 1926 and 1937· The following studies have been gathered from the printed bulletins and annual reports of the Philadelphia bureau: School progress and elimination. (Bulletin No. 1, 1926.) 35 PP. Analysis of promotion ratos. (Bulletin No. 2, 1926.) b? pp. Educational tests and measurements: statistical treatment of test results. (Bulletin No. 68, 1928.) 5k pp. Individualization of Instruction: devices for use within the teaching group. (Bulletin No. 2 7 8 , December 1933 0 36 pp. "Individual pupil records." Annual Report, Division of Educational Research and Results, 1936, pp. 22-30.

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"Pupil population trends and school building accommodations." Annual Report, 1937, pp. 6-11. "Residence plots of senior high school pupils." Annual Report, 1937, pp. 11-13. "Utilization of senior high school 'buildings." Annual Report, 1937, pp. 13-19. Pittsburgh has published its research studies in the Pittsburgh Schools. Under a cooperative arrangement between the Board of Education and the University of Pittsburgh, the graduate students at the University School of Education, many of whom have been teachers in the local system, are able to utilize problems and materials from the public schools for their doctors' theses at the University. Many of those theses are then published in the Pittsburgh SchoolB, along with the research studies made by the bureau and by other educational workers in the system. A list of titles published in Volumes XI to XIII, between 1936 and 1939 ie given on the following pages to indicate the nature of the contents of that publication. Miller, A. J. "The college success of high school graduates of exceptional ability." XI: 13-35, September-October 1936. (Ph. D. thesis) Earhart, Will, and Miller, A. J. "An experimental study of the value of instrumental training in public school music." H : U9-58, November-December 1936. Kanarik, Roselle, and Manwiller, C. E. "How a high school attacks its learning difficulties in reading and arithmetic." H : 9^-116, January-February 1937· Manwiller, C. E. "Constancy of the I.Q. based on group measurement." XI: 125-Ό, March-April 1937. Steele, D. C. "Correlation of English grades with language grades in the Westinghouse high school." XI: 1^-50, MarchApril 1937. Fleming, J. W. "Predicting trade school success." H : 153210, May-June 1937- (Ed. D. thesie) Manwiller, 0. E. "Reading difficulties." (Summary of recent research findings on the problem; with bibliography of thirty-five titles from Gray, 1922, to Monroe and Backus, 1937) XII: 1-127, September 1937-February 1938.

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Hazlett, J. R. "An experimental study of methodology In geographical material of motion pictures." H I ; 128-38, January-February 1938. Kunde, Lillian A. "Aesthetic Judgment of seventh grade students of line in dress costume design." XII: lUl-5ll·, MarchApril 1938. (M. A. thesis) Schane, Evelyn B. "Characteristic errors in common fractions at different levels of intelligence." XII: 155-68, MarchApril 1938. (M. A. thesis) Alderman, Everett. "The effect of size of type on speed of reading and the determination of various factors that may influence the results." XIII: 33-63, November-December 1938. (Ed. D. thesis) Manwiller, C. E. "Differences in emphasis on experiences and concepts in readers." XIII: 65-98, January-February 1939. Sherman, Edith. "An experimental investigation of the modifiabllity of slant in the handwriting of the elementary school pupils." XIII: 103-22, March-April 1939. (M. A. thesis) "Follow-up study of the graduates of the high school classes of February-June 1937." XIII: 123-32, March-April 1939. Washburn, S. M. "The relative difficulty of the number combinations in 1937 as determined by repeating Clapp'e investigation." XIII: 133-'•O, May-June 1939. (M. A. thesis) Booth) Helen. "An experiment in leisure reading at Prospect Junior High School." XIII: 1^1-1*8, May-June 1939. The St. Louis bureau has published a series of studies In the Public School Messenger under the general title of "Research and Survey Series," since November 1926. Seven numbers of the series have so far been published, including the following separate titles: "Measuring the achievement of pupils." Public School Messenger, XXIV, No. 1, November 1926, pp. 3-12. "Knowledge of pupils regarding the provisions of the United States constitution." Public School Messenger, XXIV, No. It·, June 1927, pp. 3-23. "Some achievement test results." Public School Messenger, XXIV, No. If, June 1927, PP. '¿'•-27.

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"Survey of high school commercial studente in employment." Public School Messenger, ZJLLV, No. U, June 1927, pp. 28-30. "Objective achievement tests constructed and used in St. Louie." Public School Messenger, XIV, No. U, November 1927. 175 PP. "A study of Junior high schools." Public School Messenger, XXV, No. 10, June 1928. M) pp. "Special schools for mentally retarded, pupils." Public School Messenger, XXVI, No. 1, September 1SP9, pp. 3-1^. "A study of letter writing in grades V-VI." Public School Messenger, XXVI, No. 1, September 1928, pp. 15-27· "Methods of subtraction." Public School Messenger, XXVI, No. 1, September 1928, pp. 28-32. "High school survey." Public School Messenger, XXXIII, No. 1, October 1935, pp. 3-39. "Retardation in primary grades." Public School Messenger, XXXIII, No. 1, October 1935, PP· UO-M. "High school survey." Public School Messenger, XXXV, No. U, October 1937 , 31* pp. 2. Studies published In mimeographed bulletins. While the bulk of the mimeographed publications of the bureaus is taken up with reports of testing programs and other matters of temporary interest, sometimes the results of research studies have appeared in this form, simply because the bureau is in the habit of publishing mimeographed bulletins regularly, or because it is more cheaply done than the printed publications. A selected number of such mimeographed bulletins from the different bureaus is listed on the following pages, to show the scope and variety of topics covered by these publications. Baltimore: Chapman, H. B. The teaching and supervisory personnel In the Baltimore public schools. 192V. 35 PP· Coulbourn, John, Study program for Junior hlgn schools. 1930. 8 pp. Beale, Beulah. Surrey of handwriting Instruction In twentyfour cities. 1931· 6 pp. Belt, Mildred. Curriculum revision from the viewpoint of placement. 1931· 25 pp.

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Medlnger, I. D. Part-time collegiate study In business and lav and Its relation to a flexible curriculum for boys. 1932. 7 pp. Chapman, H. B. Same basic facte concerning the public Bchoola. 1933. 31 PP. Buchwald, L. C. Follow-up of Junior and senior high school graduates and withdrawals, 1933-31*. I93h. 15 pp. Chapman, H. B. Five-year study of the population In each school building of Baltimore, 1929-1933· 193^. 26 pp. Hihn, M. M. Study of truancy In Baltimore schools, 1926-1935. 1935. 6 pp. Chapman, H. B. Comparative summary of studies In class size, 1930-1938. 1939. U PP. Boston: Study of college grades received during the flrBt semester by graduates of high schools. 1933- 5 PP· (Study repeated annually since.) Cleveland: Connor, W. L. Cost of teaching Junior and senior high school subjects, 1922-23. (Bulletin No. 66, March 192^.) 35 PPMann, C. H. Platoon and traditional schools in Cleveland compared. (Bulletin Nos. 38, 39, 67, 72, 73, 76, 77, 78, 79, 9k, 1I+3, 1UU, 158, 166, October 192l*-May 1925.) 56 pp. The social sciences: seme parts of a course of study for the social sciences In the Junior high schools of Cleveland. (Bulletin No. 56, October 192k.) 51* pp. Bain, L. C. Turnover In the teaching staff of the Cleveland public schools. (Bulletin No. 8*1, December 1921*.) l6 pp. Van Wagenen, N. B. Classification: The extent to which the Junior and senior high schools now practice grouping pupils by ability. (Bulletin No. 173, May 1925·) 8 pp. LaDu, R. W., and McCullough, W. S. Commercial occupations of pupils leaving or graduating from Cleveland Junior and senior high schools. (Bulletin No. 17k, May 1925.) Connor, W. L. Preliminary report on clerical service, elementary schools. (Bulletin No. 177, May 1925.) 21 pp. Connor, W. L. Platoon school experiment. (Bulletin No. 5, August 1925.) 95 PP.

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Connor, W. L. Job analysis of the vork of an elementary school principal. (Bulletin No. 4, August 1925.) 6 pp. LaDu, R. W. Study of relation betveen teachers' marks In foreign languages and, probable learning rate of pupils. (Bulletin No. 10, September 1925·) 25 pp. Selecting a history textbook for use In Cleveland Junior high schools. (Bulletin No. 8, September 1926.) 64 pp. Shinnerer, M. C. What children do and like to do In the summer. (Bulletin No. 8, July 1928.) 17 pp. Davidson, Janet M., and LaDu, R. M. Summary of studies of mental tests and retests, Bureau of Educational Research and Psychological Clinic, Cleveland. (Bulletin No. 51*, March 1929.) 5 pp. Ankeney, H. L., Redmond, F. Α., and Connor, W. L. Preliminar? survey of the effect of the nev social studies course on current expenditures for teaching, and on the achievement of pupils. (Bulletin No. 8, August 1929.) 1^2 pp. Connor, W. L. MUBIC appreciation concerts: radio programs by Damro8ch, and Cleveland Symphony Orchestra concerts. (Bulletin No. 67, June 1930.) 18 pp. Connor, W. L. Summary of reading studies made by the Bureau of Educational Research, Cleveland, 1923-30. (Bulletin No. 3, July 1930.) 6 pp. Connor, W. L. Summary of studies In English made by the Bureau of Educational Research, Cleveland, 1926-30. (Bulletin No. 15, September 1930.) 5 pp. Hawkins, Gertrude C. A study of the relation betveen ability and achievement for major vork groups: achievement measured by the Stanford tests. (Bulletin No. 23, October 1931.) 37 pp. Hawkins, Gertrude C. The reading survey, January 1932. (Bulletin No. 3, July 1932.) 52 pp. Connor, W. L. Cooperative health study: Hiram House and Cleveland Public Schools. (Bulletin No. 25, October 1935.) 5 pp. Adell, J. C. The value of the Detroit Mechanical Aptitude Examination for boys as an Instrument for predicting success of East Technical High School tenth grade students In

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Mechanical Drawing, Shop, Science, and Algebra. (Bulletin No. 65, April 1939.) 6 pp. Detroit : Bergman, W. G. The equivalence of form of the Parker-Detroit Heading Testa. April 1925. U pp. Bergman, W. G. Validity of the Parker-Detroit Reading Testa. June 1925. 10 pp. Bergman, W. G. Reliability of the Parker-Detroit Beading Teata, September 1925. lU pp. Growth In teat scores of reading groupa A, B, and C. September 1926. 7 pp. Teacher abaence and emergency aubetltutea. November 1926. 8 pp. Reporta on handwriting and campoaltlon surveys. February-May 1927. 53 PP. Rankin, P. T. Experimental studies on effect of phonetic training. November 1927. 3 pp. The Individualization experiment. 1928, 1929. 63 pp. Salary achedulea In Detroit and In Nev York City, 1928-29. 1929. 6 pp. Irwin, M. E. Summary of special lnveatlgatlons In the field of vocational education. January 1930. l8 pp. The Detroit Cardinal Objectives Examination. 1930. 36 pp. Difficulty and validity of the Individual Items In certain Detroit e·"»^nations. September 1930. U5 pp. Special ultra-violet transmitting glass experiment. 1931· pp. The Detroit Cardinal Objectives Examination. April 1931. 23 pp. Health education survey, 1931. November 1931· 120 pp. Variation of performance experiment. 1932. 20 pp. Vreeland, Wendell. Some effects of emotional disturbance upon motor reaction. 1933· 12 pp. A survey of preaent practice and of opinion concerning trenda vlth reapect to the Master's theala. April 193^· 8 pp. Vreeland, Wendell. The content of state Journals. 193^· 100 pp. Handwriting survey, 1931*· 1935. 120 pp.

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Three modes of adjustment to needs of brightest puplle. Januuary 1935. 7 pp. Coats at Cass Technical High School. September 1935· 20 pp. Measurement of the vocabulary and sentence structure of supplementary reading materials. October 1935· 10 pp. Trends and comparisons In time allotments. 1936. 6 pp. Reading aurrey report. December 1936. 125 pp. Grade placement of history and civics books on high school level. April 1937. 3 PP. Flacher, C. H. Population trends and school membership. January 1938. 27 pp. Promotion policies In certain large American cities. 1938. 5 pp. Significant aspects of Detroit school revenuea and the need for state aid. 1938. 8 pp. Per capita costa In Detroit, 1921-1937- 1938. 8 pp. Memoranda on Detroit teachera' salary schedule. 1938. 16 pp. Teacher absences and substitute service. 1938. 17 pp. Projected annual expenditures of teachers' retirement fund, 1936-37 through 19^6-^7· 1938. b pp. Reliability of relative scores. March 1939. U pp. Milwaukee: Report of the English committee on development of reading skills. April 1931. 36 pp. Words moat frequently misspelled by Milwaukee high school students In -written themes. September 1930 . 56 pp. The organization of life advisement In Milwaukee high schools. October 1935. 22 pp. Failures, withdrawals, and subject enrollmenta In Milwaukee high schools. Januáry 1936. 39 ΡΡ· Division of time allotted to the teaching of chemistry and physics. August 1936. 10 pp. Life advisement activities In Milwaukee senior high schools. December 1937. 101 pp. A study of Milwaukee high school graduates of June 1937. September 1938. 9 pp. A study of Milwaukee high school graduates. 1939· 20 pp. Report of committee on additional high school facilities for the South Side. September 1931. 20 pp.

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Philadelphia: Mental ability of Philadelphia 12B pupila aa measured by acores In Otla Teat of Mental Ability, Higher Examination. (Bulletin No. 97, 1928.) 21 pp. Subject matter teat ecoree of Philadelphia 12B studente. (Bulletin No. 109, 1921.) 57 pp. Controlled experiment In study type reading. (Bulletin No. 170, 1930.) b pp. Individualization of Instruction and grouping by ability In Junior and senior high schools. (Bulletin No. 175, 1930.) 13 pp. American Council Alpha teat scores and final marks In French (U), German (1»), Spanish (b). (Bulletin No. 201, 1931. ) 21 pp. Scores In thé Ullman-glrby Comprehension Teat, Form I, and school marks of studente In latin (4). (Bulletin No. 210, 1931.) 11 PP. Provisions for Individual dlfferencea In Junior and aenlor high achoola. (Bulletin No. 212, 1931.) 26 pp. Achievement expectancy: a partial basis for evaluating results on standardized testa In gradea 3 to 6. (Bulletin No. 233, 1932.) 7 pp. Teaching loads In senior high schools. (Bulletin No. 183, 1930.) 20 pp. Teaching loada In Junior high schools. (Bulletin No. 256, 1932.) 12 pp. Course of atudy adjustments for pupila of high and lov ability In secondary schools. (Bulletin No. 27b, 1933·) 15 PP· Utilization of aenlor"high sghool buildings. (Bulletin No. 458, 1937.) 11 PP. Remedial and corrective reading In grades 7 - 1 2 . (November 1937.) 2b pp. Evaluation of reorganization of English In Frankford High School. (Bulletin No. 472, 1938.) 13 pp. General estimate of building needa and teacher requirements for the tvelve-year period 1938-1950. 1938. 6 pp. High Bchòol pre-graduatlon achievement survey: grade 12B academic curriculum, May 1938. (Bulletin 493, 1939.) 21 pp.

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San Francisco: Musical accomplishment of pupila In high sixth grade. (Bulletin No. 79, 1935.) 86 pp. Reading ability - end of low second grade. (Bulletin No. 83, 1936.) 4 pp. Beading ability In the low fourth grade. (Bulletin No. 8U, 1936.) 8 pp. Power machines In Junior high schools. (Bulletin No. 90, 1937.) 3 PP. Age and ability of Junior high school pupils. (Bulletin No. 9b, 1937.) 8 pp. Class size, San Francisco Junior high achoolB. (Bulletin No. 105, 1937.) U PP. Ability In arithmetic computation at Junior high school entrance, 1937-1938. (Bulletin No. IO8, 1938.) 11 pp. Class size, San Francisco high schools, Fall term 1938-39. (Bulletin No. II8, 1938.) 5 pp. Promotion report for San Francisco elementary schools, Spring term 1938. (Bulletin No. 119, 1938.) 9 pp. Administration and Interpretation of the measurement program In the elementary and Junior high schools. 1939· ^7 pp. 3. Studies Incorporated In superintendent's reports. Often the results of research studies by these bureaus are Incorporated Into the annual reports of the school superintendents. The following Is a partial list of such studies found in the volumes of the annual reports of the respective city school systems. Baltimore : "A study of the measurement of the arithmetical abilities of seven hundred pupils in nineteen classes, sixth A grade, by results obtained from Stone's test." Eighty-third annual report of the Board of School Commissioners, 1912, pp. I8I213. "School libraries." One-hundredth annual report of the Board of School Commissioners, 1929, ΡΡ· ΐ·+1-^7. "The cost of public schools." One hundred and third annual report of the Board of School Commissioners, 1932, pp. 52-

96.

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Boston: "Professional preparation of Boston teachers." Annual report of the superintendent (School Document No. 12), 1927» pp. 222-37. "Age-progress study - elementary districts." Annual report of the superintendent (School Document No. 11), 1932, PP. 29-38. Cleveland: "The first of a series of surreys of the department of instruction, Cleveland public schools." Annual report of the superintendent, 1920-1921. 29 pp. "The Bureau of Educational Hesearch." Annual report of the superintendent, 1926-1927, pp. 61-93Detroit: "Improvement in arithmetic through the use of practice exercises." Seventy-first annual report of the Board of Education, 193A, PP. 132-39. "Relation of the ability of the teacher to the results in arithmetic." Seventy-first annual report of the Board of Education, 1911*, pp. 139-1+1. "Arithmetic teste in the four operations: spelling survey; handwriting; effects of six different methods of teaching reading in the Β first grades." Seventy-second annual reports of the Board of Education, 1915, pp. 103-10. St. Louis: "School salaries." Seventieth annual report of the Board of Education, 1923-1921+, pp. 3-1+7"Typewriting survey in high schools." Seventieth annual report of the Board of Education, 1923-1921+, pp. 1+8-61+. "Mental testing in St. Louis." Seventy-first annual report of the Board of Education, 1921+-1925, pp. 1+5-66. "Measuring achievement." Seventy-second annual report of the Board of Education, 1925-1926, pp. 58-69. "Survey of enrollment and estimated capacity of high school •buildings." Seventy-seventh annual report of the Board of Education, 1930-1931» ΡΡ· 22-21+. "The school tax election." Eightieth annual report of the Board of Education, 1933-193'+, pp. 17-22.

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"Knowledge of the Constitution of the United States." Eightyfourth annual report, 1937-1938, pp. 27-29· 1+. Studies reported. In professional Journals. Sometimes the results of research In particular bureaus have been published In professional Journals under the nanee of the research workers or of other school officials. An attempt has been made to discover the extent to which the work of the city school research bureaus covered by this study has been reported through the professional Journals other than the local school pubIlea-

2

tions. The list of articles given below Is by no means exhaustive, but may be considered as representative of the contributions of these bureaus to the current literature of educational research. Chapman, H. B. "Transportation of school children In sixtyfour cities." Educational Research Service (National Educational Association), Circular No. 4, March 1931. 12 pp. Buckley, H. M., Connor, W. L., and Hawkins, Gertrude C. "Radio instruction in Cleveland." Thirteenth Yearbook, National Education Association of Elementary School Principals, June 193^, pp. 39^-^02. Connor, W. L. "Materials useful in learning to solve problems." Educational Method, XIII, 369-70, April 193^· Connor, W. L., and Hawkins, Gertrude C. "Ability grouping in certain selected schools." Thirty-fifth Yearbook, National Society for the Study of Education, 1936, Part I, pp. 2kT,

lb.

Connor, W. L., and Hawkins, Gertrude C. "What materiale are most useful to children in learning to solve problems?" Educational Method, October 1936, pp. 21-29. Nettels, C. H. "Science interests of Junior high school pupils." Science Education, May 1931, PP. 219-25. Nettels, C. H. "Science topics that are of interest an4 use to adults." Science Education, March 1931, pp. 139-1»·!?. Lewerenz, A. S. "Children and the public library." Library Quarterly, April 1931. Lewerenz, A. S. "Tests in fundamental abilities of visual art." The High School Teacher, Yol. IV, No. 5, May 1928, pp. 190-92.

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Bergman, W. G. "Adapting the Wlnnetka plan to a large city school system." Modern Education, April 1930. Irvin, M. E. "Adapting the Dalton plan to a large city school system." Modern Education, December 1929· Rankin, P. T. "The Detroit experiment in Individualized instruction." Individual Instruction, Vol. I, No. 3, 12-15, February 1929. Vreeland, Wendell. "Detroit's experiment on individualization." School and Society, XXXII, No. 821, September 20, 1930, pp. 398-402. Rankin, P. T. "The technique of the large scale experiment." Educational Method, VIII, 499, 504, June 1929. Lazar, May. "Pupils' difficulties in learning fundamental operations in arithmetic - addition, subtraction, multiplication, division." Modern Education, October 1930-Aprll 1931. Lazar, May. "The use of standardized tests in the public schools of the city of Nev York." School and Home, H V , No. 1*3, pp. 3-10, January 1930. Lazar, May. "Whither school records and reports?" The School Executive, 57: 467-68, 512-13» June 1938. Barthelmess, Harriet M. "Geography testing in Boston." Journal of Educational Research, November 1920. Boyer, P. Α., and Barthelmess, Harriet M. "Relation between teaching efficiency and college credit." Educational Administration and Supervision, November 1928. Boyer, P. Α., and Barthelmese, Harriet M. "An evaluation of ability grouping." Journal of Educational Research, December 1932. Barthelmess, Harriet M. "Testing the ability to use the index and dictionary." National Education Association Proceedings, February 1934, pp. 380-82. Iandry, H. A. "The disparity of test norms." Nev York Society for the Experimental Study of Education Yearbook, 1938, pp. 208-17. Eads, Laura K. "Research leading to the production of primary grade educational sound films." New York Society for the Experimental Study of Education Yearbook, 1938, pp. 87-91.

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Boyer, P. A. "Have high schools neglected academic achievement?" School and Society, June 2b, 1939, pp. 810-12. Gordon, H. C. "Written English of senior high school piçils." Journal of Educational Research, March 1939· Bear, Mata V. "Meeting the needs of exceptionally bright pupils in St. Louis." The English Journal, Part II, Vol. XXVIII, No. 2, February 1939, p. 25. Bear, Mata V. "How St. Louis schools serve their bright pupils." National Education Association Journal, Vol. JUL ν ill, No. k, April 1939,' p. 121. Johnson, G. B. "Knowledge of the Constitution of the United States." School and Society, Vol. U8, No. 1250, December 10, 1938. Johnson, G. B. "Will or shall?" School and Society, June 17, 1939, p. 779. Johnson, G. B. "Bright pupils who fail in high school." American School Board Journal, Vol. 98, No. 3» March 1939» P. 25. Johnson, G. B. "Girls do better than boys in school." School and Society, Vol. kj, No. 1210, March 5, 1938. Johnson, G. B. "Girls lead in progress through school," American School Board Journal, Vol. 95, No. 1;, October 1937, p. 25. Johnson, G. B. "Dealing with difference in ability." Aaerlcan School Board Journal, March 1937, p. 32. Johnson, G. B. "Differentiating graduation from high school." American School Board Journal, July 1936, p. 31. Johnson, G. B. "High schools for whom?" School and Society, May 18, 1935, P. 675Lewin, Lillie, "Pupil adjustment through measurement." California Journal of Secondary Education, January 1939. A search through the three volumes of the Bevlew of Educational BeBearch constituting a complete cycle between 1937 and 1939, resulted in discovering less than fifty references to published studies that may be identified as the work of the research bureaus covered in this survey. Among those references not already given above may be listed the following titles:

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Getto, Frank M. "Remedial reading in Pittsburgh high Bohools." Pittsburgh Schools IX (September-October, 1931+): 3-12. Bain, L. C. "Measures of secondary school organization." Educational Research Bulletin IIV (November 1935): 201-07. Boyer, Philip A. "The administration of learning groups in elementary schools." The grouping of pupils (Thirty-fifth Yearbook, Part I, National Society for the Study of Education, 1936), Chapter lk, pp. 277-88. Broenlng, Angela M. "Factors influencing pupils' reading of library books." Elementary English Review XI (June 193Ό : 155-58. Stenquist, J. L. "Vocational interests, ability and aptitude." Educational diagnosis (Thirty-fourth Yearbook, National Society for the Study of Education, 1935), PP- 1+35-1+5. Rankin, Paul T. "Diagnosis and remedial instruction in creativeness." Educational diagnosis (Thirty-fourth Yearbook, National Society for the Study of Education, 1935), Chapter 2k, pp. 1*87-98. Stenquist, J. L. "The administration of a program of diagnosis and remedial instruction." Educational diagnosis (Thirty-fourth Yearbook, National Society for the Study of Education, 1935), Chapter 25, pp. 501-23. Iezar, May. Reading interests, activities, and opportunities of bright, average, and dull children. Contributions to Education, No. 707. New York: Teachers College, Columbia University, 1937, 127 pp. Connor, W. L., and Hawkins. G. C. "Ability grouping in certain selected schools." The grouping of pupils (Thirtyfifth Yearbook, Part I, National Society for the Study of Education, 1936), Chapter 11, pp. 191-215. Lazar, May. "Whither school records and reports?" School Executives 57 (June 1938): 1*67-68, 512-13Appraisal of Bureau Studies An attempt to appraise the value of the research sitadles published by the group of bureaus is made by asking each bureau to select ten or twelve studies considered to be most representative of the work of the bureau. In some cases It haa been

134

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

found Impossible to appraise the products of a bureau In this manner, since it does not publish its results in a form available for examination outside of the bureau. Eight of the bureaus submitted copies of certain studies for examination. A total of ninety-one studies were thus collected. Method of appraising bureau studies. The method of appraisal is based on the combined Judgments of three persons each of whom has rated a study on a rating scale which is adapted from that used by the Committee on Awards of the American Educational Research Association for the appraisal of research studies for consideration by the committee.3 The scale consists of the following ratings : D - Compatible with the standards for a doctoral dissertation. W - Not up to the standards for a doctoral dissertation, but considered a worthy contribution to educational research. Ν - Not considered a worthy contribution to educational research. The Judges consisted of nine professors of education in the fields of educational research and administration, ten graduate students in a class on research methods, and the Investigator. In general, each study was rated once by a professor, once by a graduate student, and once by the Investigator. A study is given a rating according to the combined Judgments of the three Independent Judges. Ratings given to studies. It is significant that on all except six of the studies, the ratings given by the three Judges are in substantial or complete agreement. Of the six exceptional cases, two represent tie votes, where one. of three Judges has recorded two ratings for the same study, and only four cases actually represent disagreement on the part of the Judges. Of the entire group of ninety-one studies selected to represent the output of eight bureaus, only six received a rating indicating that they are considered as compatible with the standards generally accepted for a doctoral dissertation. Fifty were rated as worthy contributions to educational research,

SOME PHASES OF ACHIEVEMENT

135

though not considered, up to the standards for doctoral dissertations . ferticular Types of Service A number of particular types of service rendered by different bureaus may be mentioned. They suggest ways In which research bureaus in other eystems may also make a contribution toward the educational progress of their schools. Educational conference. An example of a promising means for the promotion of research among the administrative and instructional personnel of a system is the annual educational conference in Detroit held under the direction of the Department of Research. The first of these conferences was held in May 1919» and every year since it has been held, generally on two successive Thursdays in May. The number of papers presented at each conference has varied frcm seven to thirty-two, totaling U6l over the twenty-one consecutive years from 1919 till 1939- Table jutvi is a summary showing the scope and frequency of the different topics dealt with in those papers.4 Cooperation with a university. Another promising type of service is illustrated by the cooperative arrangement for research between the Department of Curriculum Study and Research of the Pittsburgh Public Schools and the University of Pittsburgh, first worked out in 1926. Under this arrangement the public schools have furnished materials and facilities for certain types of research problems to graduate students of education at the University, many of wham have been teachers in the local schools; while the University has furnished the stimulation and guidance, including the technical advice of the faculty members, and other technical facilities of an institution of higher education. It may be mentioned that similar opportunities are generally provided by the other city schools to graduate students in universities both within and without the cities concerned, even though no definite arrangements have been entered into between the schools and the universities.

Table AIVi Sunmary of Topica of Papera Presented, at the Annual Educational Conferences In Detroit, 1919-39 - Topic

No. of Papera

m , Topic

Ν

°· 0 f Papere

Adult education

1

Delinquency, problem casea

10

Aptitude testing

1*

Extracurricular activitlea

7

Arithmetic

8

Follov-up studies

11

Art and art appreciation

1+

Foreign language

1

Geography

1

Guidance, vocational

8

Handedness

k

Attendance Aviation education

10 1

Building prograne and surveys

5

Character education

6

Chemistry

3

Child psychology

8

Class size

10

Commercial education

5

Consumer education

1

Counseling

6

Crippled children

1

Curriculum building

Handwriting

10

Health education

15

Higher education

3

History

2

Hobbies

1

Home economics, nutrition

y

Homogeneous grouping

11

Individualized instruction

12

6

Industrial and vocational arta

12

Defective hearing

2

Kindergarten education

5

Defective vision

2

Length of period

3

Educational psychology

9

Library aervlce

3

Mathematica

1»

Mental measurement

9

English Içulpnent and supplies

16 2 196

Tai) le XXVI Summary of Topics of Papera Presented at the Annual Educational Conferences In Detroit, 1919-39 (Cont'd) Topic

No. of Papers

Topic

No. of Papers

Mentally handicapped

8

School finance

Music

6

School organization

8

Motivation

U

School plant

3

Occupations

5

Science

3

Parental education

2

Social studies

5

Part-time employment

3

Special groups and classes

4

Speech defectives

3

Spelling

6

Statistical methods

1

Student government

2

Student load

1

Personnel, non-teaching Personnel, teaching

9

Personality and character measurement

1

Physical education

6

Placement

3

Preschool education

1

Public relations

2

pupil progress, promotions, failures 13 Radio education Heading

3 20

15

Study methods

7

Slimmer schools

3

Supervision

1+

Teacher education

5

Teacher marks

3

Teaching methods

8

Test construction and use

12j

Beading difficulties

6

Reading Interests

9

Textbooks

1

Report cards

3

Visual education

4

Safety education

U

Vocational testing

4

Total no. of papers 137

461

ι

138

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

School building surveys and programa. One of the functions taken up by relatively few bureaus Is that of surveying and planning for school buildings. The Baltimore bureau in 1938 made a "Ten-year Study of the Population in Each School Building of Baltimore as of October in Each of the Selected Years,"5 as part of a survey of the needs for school buildings. The Cleveland Bureau in 1928 published a report of the "Cleveland Ventilation Study,"6 made by a committee. The Philadelphia bureau has since 1937 made continuous studies of population trends, residence plots, utilization of school buildings, and estimates of building needs and- teacher requirements for a period of years.7 The Pittsburgh bureau has published one report on the "Utilization of a Pittsburgh High School."8 The Milwaukee Schools has published two five-year programe Q for school buildings and sites, the first covering the years 1929-31*, and the second covering the period 1936-hl. These programs are based on systematic studies of population trends, school membership, surveys of present facilities, and estimates of future needo, as well as on practical considerations of school policies and financial needs. Perhaps the most intensive effort in this direction has been made in the Chicago Bureau of Research and Building Survey. Following the Strayer Survey of 1932, the Chicago schools started on a program to overcome the conditions of seat shortage, half-day sessions, as well as the elimination of "portables" and the modernization of antiquated buildings. In 1938 the bureau reported forty-eight building projects completed since 1933, and a number of other projects under construction or recommended for construction. During 1937 a committee consisting of an assistant superintendent, three district superintendents, and four directors of bureaus conducted a systematic survey of all the high school buildings in Chicago, and made specific recommendations for the rehabilitation of the buildings in various detailed aspects. Late in 1937, the Director of' Research and Building Survey, accompanied by a committee, made extensive studies of vocational schools in different parts of the country as a basis for the planning of a new vocational high school In Chicago.10

Cnapter VII SUMMARY AND CONCLUSIONS: SOME GUIDING

PRINCIPLES

The present study is an inquiry into the organization, activities and. accomplishments of a selected number of city school research bureaus in the larger city school systems in the United States. The bureaus selected for study are found in twelve out of the thirteen cities with over 500,000 population. The problem of this study is related to certain larger problema dealing with the question of educational research, namely: (1) the nature and function of educational research; (2) provisions and facilities available for educational research; (3) results and accomplishments of educational research; ) the training of workers for educational research; and (5) the outlook for the future development of educational research. The purpose of thid study is to formulate a set of general principles useful for the guidance of those who are concerned with the establishment of similar bureaus in large school systems in this country and elsewhere, or with the reorganization of existing bureaus with a view to increasing their efficiency and usefulness. All previous studies of this type, including three leaflete and a monograph published by the U. S. Office of Education, three doctoral theses written at the Ohio State, Harvard and Columbia Universities, and a few articles in professional Journale, have been based on information secured by means of the questionnaire. The present investigator visited nine of the bureaus between March and August 1939, interviewed the official in charge of another, and completed his survey by means of correspondence with all the bureaus, Including the two not reached by personal contact. Certain basic assumptions made at the outset of the study have been stated and explained in Chapter I. These assumptions represent the Investigator's belief that: (l) the problems of education constitute a special field of research, to which

140

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

certain general and specific methods of objective inquiry are applicable; (2) educational research can be conducted effectively under the auspices of organized institutions the major function of which is the administration and supervision of educational activities; and (3) the administration of a system of public schools in a large city is an enterprise of sufficient importance and dimension to warrant the establishment within its system of an agency devoted in whole or in part to educational research. A list of the bureaus included in the present study, with the dates of their establishment and the names of their successive directors, is found in Table II, on page 9. A description of each bureau, including a brief account of its establishment and development, major changes in its organization and personnel, and its statue at the time of the survey, has been given in Chapter II. The bureaus have been described in the order of their establishment. The functions of the bureaus, whether defined in official documents or implied in the reported activities of the bureaus, have been examined and presented in Chapter III. The same chapter also includes a presentation of the organization of each bureau, both in relation to the respective school système and in respect to functional divisions within the bureaus. Chapter IV includes an analysis of the personnel of the bureaus, and a classification of the professional workers in the bureaus by age, sex, training, experience, and other characteristics. The physical facilities provided for each of the bureaus, in the form of working space, special equipment, and reference libraries, have been examined and summarized In Tables XIII to XV on pages 8θ to 83. The annual expenditures of the bureaus, including salaries for the workers and the cost of testing supplies and other items, are given in Table XVI on page 85. The activities of the bureaus have been analyzed by means of a weighted estimate of the distribution of timo cf the workers in each bureau, an examination of the files and records maintained by each bureau, and a detailed analysis of the contents of the bureau's publications. These methods of analysis agree

SUMMARY AND CONCLUSIONS: SOME GUIDING PRINCIPLES

141

in showing the major emphases placed by the bureaus on various types of activities, such as testing and measurement; statistics, reports, and publications; research studies and investigations; reference, information and publicity; and other miscellaneous activities. The accomplishment of the bureaus has been studied in connection with the nature and extent of the testing service rendered by each bureau; the publication of the bureau studies in the form of printed or mimeographed bulletins, or as contributions to the superintendent's annual reports or to professional Journals of general circulation; and a number of particular types of service found in certain of the bureaus. The remainder of this chapter will be devoted to a summarization of the findings of the present inquiry, and a statement of certain guiding principles partly based on the findings and partly on the ccmbined experiences and Judgments of many experts and students in this area, digested and appropriated by the investigator in the course of his study.1 The summary of the findings and statement of principles will follow in general the order of presentation of the preceding chapters, and reference will be made to data and evidences presented therein. Functions of a City School Research Bureau Summary of findings. Among the twelve bureaus included in this study, explicit statements of their functions are found in the official by-laws or regulations of the school systems in only two cases. In three other cases, such statements are found in the superintendent's annual report or in other documents originating from the superintendent's office. In the majority of cases, the functions or duties of the bureaus must be inferred from the bureau's own reports of its activities. All statements of functions aseigned to the bureaus include a clause requiring or authorizing the bureaus to engage in objective inquiry or investigation of educational problems. These clauses are in some cases qualified by requiring that the problems to be etudied should be those referred to the bureau by the board or by the superintendent, or such as are approved by

142

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

the superintendent. More comprehensive definitions of the research function are given In the case of Detroit and of Philadelphia, where the bureaus are charged with the "scientific Btudy of all phases of school work"2 and "a constant study of educational conditions throughout the city."3 The functions usually associated with research, and assigned to the bureaus, Include: measurement, statistics, and reference Principle I. Upon the establishment of a research bureau In a city school system, or soon after, an official statement of its functions should be formulated, in which the objective study of educational problems should be explicitly included as one of the major functions of the bureau. Other functions that may conveniently be associated with research are those of measurement, statistics, and reference. Organization of the Bureau SiTTTimx-ry of findings. The bureau of research is generally organized as part of the superintendent's staff, related, or parallel, to other bureaus and departments of a similar nature. Among the latter are those connected with child accounting, child study, curricultun construction, guidance and placement, and certain agencies entrusted with special administrative duties, as adult education, special schools and classes, and the control of books, supplies and equipment. Nine of the twelve bureaus are headed by officers directly responsible to the superintendent; the other three being under the supervision of an associate or deputy superintendent In charge of a number of special services. In two systems the officer who was in direot charge of the bureau has been promoted to a position intermediate between the director and the superintendent . Internally, there is usually some division of responsibility among the workers of the bureau. In the largest systems this consiste in the organization of separate functional divisione within the bureau, such as the divisions of Instructional and administrative research, of statistics, reference, and publications .

SUMMARY AND CONCLUSIONS: SOME GUIDING PRINCIPLES

143

Principle II. The 'bureau should, be organized as part of the superintendent'a staff, directly responsible to the superintendent, and not charged vlth administrative duties. Such duties as the supervision of special schools or types of education and the control of tertbooks, supplies and equipment, should be assigned to other bureaus or departments vlth which the bureau of research may maintain coordinate relations. Principle III. Where the size of the system permits a sufficiently large staff, there should be functional divisions within the bureau to care for the different lines of service assigned to the bureau. The Bureau's Personnel Summary of findings. The size of the bureau's staff among the twelve bureaus varies from four to sixty-nine, including professional and non-professional workers. The professional workers, consisting of the directors, assistant directors, research assistants, and others, for the group of twelve bureaus as a whole, constitute approximately four-tenths of the total workers. The professional workers in the group of bureaus are composed of slightly more men than women; three-fourths of them are under forty-five years of age; a majority of them have had specialized training in one or more of the fields related to educational research and measurement; a majority have also had some type of experience In teaching, though relatively few have had administrative experience. Memberships are held by these professional workers in more than twenty national professional organizations. Almost three-fourths of the professional workers have been in the present school eyetem ten years or longer. Nearly half of them have been In their present positions for that length of time. Salaries for directors and assistant directors range from $3,600 to $10,000 a year; for research assistants from $1,700 to $5,000.

144

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Principle IV. The professional personnel of the bureau should be selected with reference to their adequate preparation and previous experience. As far as possiti le, their preparation should include definite training in methods of research, and In certain fields related to educational research. Previous experience in some type of teaching should be desirable. Principle V. The salary paid to professional workers in a research bureau should be conmensúrate with their special qualifications, and should compare favorably with those of other instructional and administrative workers in the school system.

Equipment and Facilities Summary of findings. Each of the twelve bureaue has an allotted floor space varying from 65O to over 10,000 square feet. There are generally one or more offices for the director and his staff, one or more workrooms for routine activities, and In a few lqetances also separate conference rooms and libraries. Special equipment In the form of computational machines Is found In each of the bureaue, the number varying from one adding machine to more than twenty adding and calculating machines for different purposes. Hollerith equipment Is available In two bureaue for mass tabulation; while various devices and equipment for use in connection with testing are found in five of the bureaue. Professional reference libraries either connected with the bureau, or located In the eame or adjacent building, are found In eleven of the twelve systems. Only half of the bureaue have available the services of a full-time trained librarian. The number of current educational periodicals received in each of the libraries varies from nine to ninety-two. The combined holdings of these libraries Include over a hundred different periodicals such as are Indexed in the Education Index. Principle VI. The bureau should be provided with proper and sufficient facilities In the form of working space, special equipment, and a reference library suited to the purpose of the bureau.

SUMMARY AND CONCLUSIONS: SOME GUIDING PRINCIPLES

145

Financial Support Summary of findings. Annual expenditures for each of the bureaus range from $13»900 to $275,900, with the median for eleven bureaus approximating $24,000. None of the système spend more than one-fourth of 1 percent of the total current educational expenditures on the research bureau, vlth the percentage as low as one-tenth of 1 percent In two or three of the systems. Principle VII. There should be a separate and adequate financial budget for the expenditures of the bureau, varying with the size of the school system, and the scope of the bureau'a activities. Activities of the Bureau Summary of findings. The different bureaus show a variety of emphasis on different types of activities. More than half of the bureaus spend the largest portion of their estimated time on testing and measurement. Four of the bureaus spend more than one-fourth of their time on statistics", reports and publications. Two bureaus emphasize the l'unetions of reference, Information, and publicity to the extent of devoting over onefourth of their total time to those activities. Only three bureaus in this group spend one-fourth or more of their estimated time on research studlee and investigations. Practically all bureaus keep files of sample tests and records of test results. They also file their own studlee. About half of the bureaus keep files of routine school reports, and the same proportion file materials on curriculum study. Analysis of the bulletins published by the bureau shows more than one-fourth of the entire amount of space devoted to results of testing, and less than one-third of the amount each to studies In the areas of administration and of Instruction. Principle VIII. The work of the bureau should be so planned that those activities of a routine or recurrent nature, such as the conducting of testing programs, the compilation of statistical reports, and the various reference and informational services, should not consume an undue portion of the time and attention of the staff of the bureau.

146

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Principle IX. The reaearch activities of the bureau should not be restricted to certain narrow areas of educational problems, but should, within the limitations of the bureau personnel, embrace as much as possible of the entire range of problems related to the administration of a school system and the Instruction of children and adults on various levels. Results and Accomplishments Sirmm«T-y 0 f findings• From 50,000 to 3,000,000 tests are given each year to pupils in each of the cities covered in this survey. Individual tests are administered, usually to children recommended for special treatment, by about half of the bureaus. Most of the bureaus have engaged in the construction of tests for use in their own système, but relatively few of those tests have been standardized and made available for general use by workers outside of the system. Results of research studies are published by each of the bureaus in one or more of the following forms : printed or mimeographed bulletins issued by the bureau, Inclusion in the annual reports- of the superintendent, and contributions to professional Journals of general circulation. A number of the bureaus began the publication of regular printed bulletins from the bureau, but only two have continued the practice uninterruptedly. One of the two regular bulletins thus published is in the nature of a general school Journal, but the other deals mainly with research studies reported by members of the local school system. Relatively few of the studies reported by these bureaus have been cited In the Review of Educational Research.4 A sampling of studies selected by the bureaus, when examined by a number of university professors and graduate students, ehows about half of them to be considered worthy contributions to educational research. Particular types of services rendered by various bureaus include : the direction of an annual educational conference in one of the cities, at which teachers and administrators of the local system present their own research studies; a cooperative arrangement In another city, whereby the graduate students at

SUMMARY AND CONCLUSIONS: SOME GUIDING PRINCIPLES

147

the university undertake the study of practical research problems connected with the local system; and the systematic survey of school buildings and sites, which constitutes one of the primary functions of the research bureau«in still another city. Principle X. Ae soon as the educational workers in the system have become familiar with the techniques of testing and measurement, and standardized tests are available for most of the purposes connected with testing in the schools, the bureau should devote ite attention in this area largely to the ueo of measuring instruments for specific research problems. Principle XI. Results of research studies on important problems undertaken by the bureau should be made available as soon as possible to all persons concerned or interested, both within and without the school system. Regular printed bulletins, devoted mainly to the reporting of research studies, may be issued by the bureau; or the results may be submitted as contributions to professional Journals of general circulation. Principle XII. As far as possible, the bureau should endeavor to promote and encourage the study of educational problems by all workers connected with the local school system, by such means as providing opportunity for them to present their research results at conferences and conventions, or through the medium of the bureau's publications. Principle XIII. As far as possible, the bureau should endeavor to introduce and interpret to the educational workers in the local system the results of research in special fields and areas, or on specific problems in which the local schools are interested, by means of abstracts, digests, reviews, summaries and bibliographies covering the work not only of the bureau itself, but of other organizations and individuals engaged in similar activities. Principle XIV. The bureau should endeavor to bring about actual improvement in educational practice within the local system, by presenting the weight of evidence based on objective inquiry, through all legitimate channels of publicity, as may be approved by the superintendent.

BIRLIOGRAPHY Agunod, Ν. L. The bureau of research and reference In American school ayβtema. New York: The author, 1931. 79 PP. Analyses data from fifty-six cities having bureaus of research and reference, and proposes plan for the organization of a research service in the Philippine Bureau of Education. American Educational Research Association. Official reports, 1935 to date. Washington, D. C.: The Association. The volumes hear separate titles, as follows: The application of research findings to current educational practices (1935)· 273 pp. Reconstructing education through research (1936). 301 pp. The role of research in educational progress (1937). 255 pp. Practical values of educational research (1938). 216 pp. Research on the foundations of American education (1939)· 215 PP. . The place of research in educational reconstruction. Washington, D. C.: National Education Association, 1936. 1*6 pp. Chapter II deals with the organization and operation of a research service in a city school system. Carr, W. G. "Staffe and salaries in city school research divisions." Journal of Educational Research 29 (January 1936): 369-71. Gives comparable data for the years, 1931» 1933, 1935· Chapman, Η. B. Organized research in education. Columbus: Ohio State University Press, 1927. 221 pp. Treats the entire subject from about 1910 down to 1926; presents data on 117 bureaus of research in city and state school systems, universities and teacher training institutions . Defferibaugh, W. S. Research bureaus in city school systems (U. S. Office of Education, City School Leaflet No. 5, January 1923). 23 PP. Data Includes (l) date of organization, (2) members of

BIBLIOGRAPHY

149

etaff, (3) total expenditures for research work, 1921-22, ( Ό scope of activities, and (5) studies made. Herbst, E. L. Bureaus of research in public school systems, vlth special reference to cities of 100,000 population or less. Unpublished doctor's thesis, Harvard University, 1930. 31^ pp. ma. Includes comparison of functions reported to be performed by bureaus, and those which their directors think should be performed. Hollis, E. V. Philanthropic foundations and higher education. New York: Columbia University Press, 1938. 365 ΡΡ· Includes activities of certain of the foundations in the support and stimulation of research in the universities. Holmes, H. W., and others. Educational research: its nature, essential conditions, and controlling concepts (American Council on Education Studies, Series I, Volume III, No.'10). Washington, D. C.: The Council, 1939. 189 pp. Chapter VTI contains suggestions toward a frame of reference for educational research. Judd, C. H. Research in the United States Office of Education (Staff Study No. 19, The Advisory Committee on Education). Washington, D. C.: Government Printing Office, 1939. 133 pp. Studies the establishment and growth of the office, its various services, quality of personnel, and appropriations for the work. Martens, Elsie H. Organization of research bureaus In city school systems (U. S. Office of Education, City School Leaflet No. 14, January 192U). 15 pp. Lists functions and working forces of fifty-three city school research bureaus, as of June 1923· Monroe, W. S., and others. Ten years of educational research, 1 9 1 8 - 1 9 2 7 (Bureau of Educational Research, Bulletin No. 1+2). Urbana, 111.: University of Illinois, 1928- 367 pp. Reviews history and progress of educational research, principally during the years 1 9 1 8 - I 9 2 7 . National Society for the Study of Education. The scientific movement in education (Thirty-seventh Yearbook, Part II). Blocanington, 111.: Public School Publishing Co., 1938. 529 pp.

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

Includes review of contribution of research to the advancement of education, and the contributions to education of scientific knowledge in particular fields. Nifenecker, E. A. "Bureaus of research in city school systems." Seventeenth Yearbook, National Society for the Study of Education, Part II, pp. 52-56, 1918. Traces early development of research bureaus In city schools, with list of bureaus established between 1912 and 1917. Bice, J. M. Scientific management in education. New York: Hinds, Noble, and Eldredge, 1912. Contains suggestion for organization of a department of educational research in a city school system, written by the author in 1902. Scates, D. E. "Public school directors of research look at their positions." Educational Research Bulletin 17 (May 1938), 115-31. Data on the status of directors of research in sixty cities of 30,000 population and over. Theisen, W. W. "The outlook for school research." Nation's Schools, 13 (February 193Ό : l6-l8. Believes that school research bureaus of the future willi do more adapting and publicizing of findings than actual research, and that teachers and principals will have more freedom to carry on research on their own initiative. Townsend, M. E. "The function and organization of educational research bureaus." American School Board Journal, 95 (November 1927): 37-^0, 136, 139. Reports data on bureaus in cities of 100,000 population and over, as of 1927; chart showing proposed plan of organization for a bureau in city of that size. Walker, Helen M. "Problems in the training of research workers." Journal of Educational Research, 26 (February 1933): M2-U8. Suggests a reduction In the number of persons doing research, and improvement of quality of logic which goes into research. Whitsky, Jonas. "The organization and functions of city school research bureaus." American School Board Journal, 96 (April 1938): 25-27, 89.

BIBLIOGRAPHY

151

Covers for citiee of 100,000 population a n d over, the status of research bureaus as of 1937, and summarizes present trends. Wright, Edith A . Organization a n d functions of research bureaus in city school systems (U. S. Office of Education, Leaflet No. 2, February 1931). Ik PP. Continues along similar lines the studies b y Deffenbaugh (1923) and Martens (192b). Zelgel, W. H., Jr. Research In secondary schools (U. S. Office of Education, Bulletin 1932, No. 17, Monograph No. 15). Washington, D. C.: Government Printing Office, 1933. 72 pp. Mainly concerned with functions a n d achievements of city school research bureaus; includes classification a n d analysis of studies made by these bureaus.

Appendix A A CHRONOLOGICAL

OUTLINE

of the Establishment and Development of City School Research Bureaus in Cities of over 500,000 Population in the United States, with Dates of Important Related Events 1902 1911-12

1912

1913

191^ 191^

1915

1916

1917

J. M. Rice first suggested the establishment of a department of educational research. Surrey of the New York City Schools, under the direction of Paul H. Hanus; the establishment of a bureau of investigation and appraisal vas recommended. Bureau of Research and Statistics established in Baltimore; enlarged in 1922 and name changed to Bureau of Measurement, Statistics and Research; began publication of Baltimore Bulletin of Education, 1923. Division of Reference and Research established in New York City; enlarged in 1918 by merging vith Statistical Division to form Bureau of Reference, Research, and Statistics; reorganized and enlarged, 1937-39. Department of Educational Investigation and Measurement established in Boston. Department of Educational Research established in Detroit; department enlarged and renamed a number of times, in 1939 known as Department of Research and Informational Service. National Association of Directors of Educational Research organized. S. A. Courtis, first president; name changed to American Educational Research Association, 1922; became a department of the National Education Association, 1930. Division of Reference and Research established in Cleveland; name changed to Bureau of Educational Research, 1926. Department of Educational Standards, Measurements and Statistics established in Chicago; later discontinued.

appendix a

1917

1918

1918

1918

1919

1920

1920

1921

192I

1 S3

Department of Educational Research established in Loe Angeles; enlarged by merging with Department of Psychology, in 1920, to form Division of Psychology and Educational Research; later reduced in scope to become Educational Research and Guidance Section under Division of Instruction and Curriculum. New York Society for the Experimental Study of Education organized; published Contributions to Education, Volume I, 192U; Volume II, 1928; first Yearbook, 1937. Publication of Part II of the Seventeenth Yearbook of the National Society for the Study of Education, entitled "The Measurement of Educational Products." Bureau of Educational Research established at the University of Illinois, B. R. Buckingham, first director; since 192I, W. S. Monroe, director. Department of Measurement and Research established in Pittsburgh; name changed to Department of Curriculum Study and Research, 1926; began publication of Curriculum Study and Research Bulletin, 1926; name of bulletin changed to Pittsburgh Schools, 1930. Publication of Journal of Educational Research, official organ of American Educational Research Association, began. Five-year program of educational research instituted by the Commonwealth Fund; Educational Research Committee appointed. Bureau of Educational Reference and Research established at the University of Michigan, Clifford Woody, director. Bureau of Educational Research established at Ohio State University, B. R. Buckingham, first director; began publication of Educational Research Bulletin, 1922.

192I

Institute of Educational Research organized at Teachere College, Columbia University, consisting of: Division of Psychological Research, E. L. Thorndike, director; Division of School Experimentation, 0. W.

154

1921

1921 1922 1922

1923

192k

1925 1928 1931 1938

EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES Caldwell, director; Division of Field Studies, G. D. Strayer, director. Educational Finance Inquiry conducted under the auspices of American Council on Education, G. D. Strayer, director. Division of Tests and Measurements established In St. Louis. Work In educational research began in, Milwaukee under assistant superintendent W. W. Theisen. Research Division of the National Education Association organized, J. K. Norton, first director; began publication of Research Bulletin, 1923. Bureau of Educational Measurements established in the New York State Department of Education, W. W. Coxe, director; name changed to Division of Educational Research, 1929. Department of Service established in San Francisco; name changed to Educational Research and Service, 1928; to Bureau of Research, Adult Education and Evening Schools, 1932, to Bureau of Research, 1939. Division of Educational Research and Results established in Philadelphia. Bureau of Research and Building Survey established in Chicago. Publication of Review of Educational Research, by American Educational Research Association, began. Publication of The scientific movement in education, Part II of the Thirty-Seventh Yearbook, National Society for the Study of Education.

Appendix Β L I S T OF CURRENT EDUCATIONAL PERIODICALS A v a i l a b l e in the P r o f e s s i o n a l and Reference L i b r a r i e s in the Twelve L a r g e s t City School Systems of the United S t a t e s (The titles below preceded by an asterisk (*) are those found In six or more of the libraries.) American Association for Health, Physical Education and Recreation, Research Quarterly American Association of University Professors, Bulletin •American Childhood American Library Association, Bulletin •American School Board Journal American Teacher Association of American Colleges, Bulletin •Baltimore Bulletin of Education British Journal of Educational Psychology Business Education World California Journal of Elementary Education California Journal of Secondary Education Chicago Schools Journal Child Study •Childhood Education •Clearing House, Junior-Senior High School Commercial Education Bulletin Curriculum Journal •Department of Secondary School Principals, Bulletin •Education •Education Digest •Educational Administration and Supervision Educational Forum Educational Law and Administration •Educational Method

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

•Educational Record •Educational Research Bulletin, Ohio State University Educational Screen •Elementary English Review •Elementary School Journal •English Journal Grade Teacher Harvard Educational Review High Points High School Journal Illinois Teacher •Industrial Arts and Vocational Education •Industrial Education Magazine Institute of International Education News Bulletin Instructor Journal of Adult Education Journal of Business Eduóation Journal of Chemistry Education •Journal of Education Journal of Education (London) •Journal of Educational Psychology •Journal of Educational Research Journal of Educational Sociology •Journal of Experimental Education •Journal of Geography Journal of Health and Physical Education Journal of Higher Education •Journal of Home Economics Journal of Juvenile Research Journal of Negro Education Junior College Journal •Mathematica Teacher Michigan Education Journal Modern Language Journal Music Educators Journal National Business Education Quarterly •National Education Association Journal •National Education Association Proceedings

APPENDIX Β

»National Education Association Research Bulletin National Elementary Principal National Parent-Teacher •Nation's Schools New Era (London) New York State Education •North Central Association Quarterly •Occupations - Vocational Guidance Ohio Schools Parents' Magazine Pennsylvania School Journal Peabody Journal of Education Pedagogical Seminary and Journal of Genetic Psychology Pittsburgh Schools Platoon School Practical Home Economics •Progressive Education Quarterly Journal of Speech •Review of Educational Research School, Elementary Education (Toronto) School, Secondary Education (Toronto) School Activities School and Home •School and Society School Arts •School Executive •School Life •School Review •School Science and Mathematics •Science Education Secondary Education Sierra Educational News •Social Education Social Frontier •Social Studies •Teachers College Record Training School Bulletin United States Office of Education Bulletin

1S7

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

University High School Journal Virginia Journal of Education Virginia Teacher Volta Review Wilson Bulletin

Appendix C PROGRAMS OF THE FIRST, ELEVENTH, AND TWENTY-FIRST ANNUAL EDUCATIONAL CONFERENCES IN THE DETROIT CITY

SCHOOLS,

Held under the D i r e c t i o n o f the Department of Research F i r s t Annual Educational Conference May 9, 1919 Mechanics of the Dictionary. George Birkam, Principal. A Problem In Grade Administration. John Merrill, Principal. Some Causes and Effects of Absence. John Redden, Principal. The Handwriting Teste - Besults and Comparisons. Lena Shaw, Acting Supervisor of Handwriting. Association Tests. Arthur Miller, Teacher. An Experiment to Measure Supervision in Geography. Burton Barns, Director of Geography. How Detroit Is Solving the Problem of the Subnormal Child. James Voorheis, Teacher. Testing Results in Chemistry. Byron J. Rivett, Teacher. An Experiment in the Use of the Hillegas Scale in Marking Composition. Roy Stevens, Principal. E l e v e n t h Annual Educational Conference May 9 and 16, 1929 Large and Small Classes in Literature. Ruth M. Barns, Teacher. The Placement and Follow-up of Special Β Boys. Frederick R. Bolton, Placement and Follow-up Officer. Standards in Rating Good Citizenship. Helen I. McCann, Teacher. A n Experiment with Lispers. Clara 3. Stoddard, Supervising Instructor, Speech Improvement. The Effectiveness of Supervision in Handwriting. Agnea A. Weidman, Assistant Supervisor, Handwriting. The Relation of Physical Defects to Mental Growth. 0. P. Kimbal,

M. D.

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The Differences Dae to Home Study. E. J. Monteith, Teacher. What Do Pupils Eeadî A. L. Snail, Teacher. The Efficiency of Demonstration Teaching. Guy A. Durgan, Principal. The Over-Age Girl Problem. Bertha M. Robinson, Teacher. The Status of Instrumental Music. Fowler Smith, Supervising Instructor, Music. The Use of the Newspaper in Curriculum Building. Manley E. Irwin, Assistant Director, Curriculum Research. The Uses of Fear. Joseph R. Tremble, Teacher. Disagreements between Scholastic Marks and Teaching Success. Cynthia Mygatt, Principal. The Detroit Mechanical Aptitudes Examination. A. C. Crockett, Assistant Supervisor, Psychological Clinic. Use of Visual Aids in Teaching Reading to Subnormal Children. Barbara Meixner, Teacher. Pedagogical Retardation. Harry H. Gragg, Principal. The Value of Study Helps In Lower Social Science. Leah A. Spencer, Assistant Supervisor, Social Science. Individualized Instruction in Shorthand. Elizabeth R. Mailbot, Teacher. The Development of Standards of Appreciation in Art. Arthur L. Miller, Principal. Differences in the Arithmetic Abilities of 7B Pupils. Duncan S. Pirie, Teacher. The Factors Affecting Norms. W. C. Bergman, Assistant Supervisor, Research. Twenty-First Annual hklucational Conference May 4 and 11, 1939 The Relation of Reading to Mental Health. Isabelle Parker, Field Worker, Psychological Clinic. The Reading Program at the Miller High School. Walter R. Northcott, Teacher. Attacking the Reading Problem. Rose Ellias and A. L. Small, Teachers. The Extent of Reading Done by Pupils and Adults. Marion L. F.dman, Assistant Professor, Wayne University.

APPENDIX C

161

Remedial Beading Classée. Donald Weimer, Teacher. Diagnostic Teaching of "Non-Readers." Bernice Leland, Assistant Supervisor, Psychological Clinic. The Effectiveness of Phonograph Recordings. Jean Ferris and A. D. Kumler, Teachers. Visual Safety Education. Funcke A. Carleen, Teacher. Speech Practices in the Intermediate Schools. R. D. Wyatt, Teacher. The Michigan Curriculum Study. Associate Professor, Wayne University, John Emens. High School Failures in 1939· R. J. Gatien, Assistant, Department of Research. Educational Temperatures at Northwestern High School. B. J. Rivett, Principal. Learning to Read Periodicals. Florence Sweeney, Teacher. Boys Also Read. Walter H. Jeake, Teacher. The Effectiveness of Classes. Cleo Β. Gill, Assistant Supervisor, Special Classes. Love of Reading Study; The Set-up of the Study. C. T. Andersen, Assistant Director of Research. Samplings from the Results. W. C. Bergman, Director of Research. Interpretations. S. A. Courtis, Professor, University of Michigan. Mental Health through the Creative Arts. Clara E. Starr, Supervisor, Music. Education for Aviation. A. D. Althouse, Supervisor, Vocational Education. Federal Aid for Education. W. Ray Smittle, Assistant Professor, Wayne University. Guiding Underprivileged Boys. Henry Obel, Principal. A Case for Homogeneous Grouping in Algebra. C. L. Thiele, Director, Exact Sciences. Tests for Retailing Aptitude. Paul H. Voekler, Psychologist, Psychological Clinic.

NOTES Chapter I : The Problem and Methods of Study

1. J. M. Rice, Scientific Management In Education (New York: Hinds, Noble and Eldredge, 1912), pp. lU-d.6. 2. New York City. Board of Estimate and Apportionment. Report of Committee on School Inquiry (New-York: Board of Estimate and Apportionment, 1913), II, ^01. 3. B. W. Holmes, et al., Educational Research: Its Nature, Essential Conditions, and Controlling Concepts (Washington, D. C.: American Council on Education, 1939), pp. 1-10. W. S. Monroe, et al., Ten Years of Educational Research, 1918-1927 (Urbana, 111.: University of Illinois, 1928), p. 30. 5. W. S. Monroe, "Evaluation and Interpretation of Educational Research," Official Report, American Educational Research Association, 1938 (Washington, D. C.: The Association, 1938), pp. 190-9^. 6. Helen M. Walker, "Problems in the Training of Research Workers," Journal of Educational Research, aavi (February, 1933), 4U2-U8. Robert Ulich, On the Reform of Educational Research. Graduate School of Educational, Occasional pamphlet No. 2 (Cambridge, Mass.: Harvard University, 1937), p. 26. 7. M. J. Adler, "Liberalism and Liberal Education," The Educational Record, XX, No. 3 (July 1939), ^22. 8. H. B. Chapman, Organized Research in Education (Columbus, Ohio: The Ohio State University Press, 1927), 221 pp. 9. E. V. Hollis, Philanthropic Foundations and Higher Education (New York: Columbia University Press, 1938), 365 pp. 10. C. H. Judd, Research in the United States Office of Education (The Advisory Committee on Education, Staff Study No. 19, Washington, D. C.: Government Printing Office, 1939), 132 ΓΡ11. E. A. Nifenecker, Bureaus of Research in City School Systems. Seventeenth Yearbook of the National Society for the Study of Education, I918, Part II, pp. 52-56.

NOTES

163

12. W. S. Defferibaugh, Besearch Bureaus In City School Systeme (U. S. Bureau of Education, City School Leaflet No. 5, Washington, D. C.: Government Printing Office, January 1923)» 23 PP. 13. Elsie H. Martens, Organization of Research Bureaus In City School Systems (U. S. Office of Education, City School Leaflet No. 14, Washington, D. C.: Government Printing Office, January 192U), 15 pp. lU. Edith A. Wright, Organization and Functions of Research Bureaus In City School Systems (U. S. Office of Education, Leaflet No. 2, Washington, D. C.: Government Printing Office, February 1931)» l1» PP· 15. Chapman, op. clt. 16. R. L. Herbst, Bureaus of Research In Public School Systems, vlth Special Reference to Bureaus of Research In Cities of 100,000 Population or Less. Doctor's thesle, Harvard University, 1930, 311* PP. MS. 17. N. L. Agunod, The Bureau of Research and Reference In American School Systems. Doctor's thesle, Columbia University (New York: The Author, 1931)» 79 PP18. W. H. Zelgel, Jr., Research In Secondary Schools (U. S. Office of Education Bulletin, 1932, No. 17, Monograph No. 15, Washington, D. C..: Government Printing Office, 1933)» 72 pp. 19. Op. cit., p. 53. 20. D. E. Scates, Public School Directors of Research Look at Their Positions. Educational Research Bulletin (Ohio State University, May 1938), XVII, 115-31. 21. Jonas Witsky, "The Organization and Functions of City School Research Bureaus," American School Board Journal, XCYI (April 1938), 25-27. 22. Loc. cit. 23. U. S. Department of Commerce, Fifteenth CensuB of the United States: 1930. Population, Vol. I (Washington, D. C.: Government Printing Office, 1931), p. l8. 2h. U. S. Office of Education, Educational Directory, 19^0. Part II, City School Officers (Washington, D. C.: Government Printing Office, 1939). Further investigation, however, revealed that one of

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EDUCATIONAL RESEARCH IN MAJOR AMERICAN CITIES

these cities — Buffalo -- has never had a bureau of research, nor has the person listed as a director of research functioned other than as a statistician in a limited sense. Another city of this group -- Milwaukee -- is also without a formal organization designated as a research bureau, but the office of one of the assistant superintendents practically corresponda to a bureau of research as found in the other cities. Chapter II: Description of the Bureaus 1. U. S. Office of Education, Biennial Survey of Education, 1934-1936 (Bulletin 1937, No. 2, Washington, D. C.: Government Printing Office, 1937), II, 28-29. 2. Baltimore, Maryland, Board of School Commissioners, Annual Report, 1912, p. 753. Chapman, op. cit., p. 90. 0. D. Strayer, director, Report of the Survey of the Public School System of Baltimore, Maryland, School Year 1920-1921, II, 66. 5. Citizens Advisory Committee on the Survey of the Educational Activities, Summary Report of Reviewing Conmlttee (Baltimore, Maryland, Department of Education, 1933), P· 62. 6. The figures for the expenditures of this and the other bureaus are secured from the directors at the time of the investigator's visit, or by means of questionnaire and correspondence. 7. E. C. Elliott, City School Supervision: A Constructive Study Applied to New York City (Yonkere, N. Y.: World Book Co., 1914), p. 179. 8. New York City, Department of Education, Seventeenth Annual Report of the Department, 1914, pp. 288-89. 9. Minutes of the Boston School Committee, January 30, 1914. (Chapman, op. cit., p. 46.) 10. Detroit, Michigan, Board of Education, Seventy-First Annual Report, 1914, p. 8I-85. 11. Proceedings of the Board of Education, Cleveland, April 3, 1916. (Chapman, op. cit., ρ. 95·) 12. Los Angeles City Schools, Fourth Yearbook of the Division of Psychology and Educational Research, 1931» PP· 7-10.

NOTES

165

1 3 . St. LOUÍB, Missouri, Board of Education, Seventy-third

Annual Report, 1927, pp. 18-I9.

14. Milwaukee, Wisconsin, Rules and Regulations of the Board of School Directors, adopted June 30, 1937, p. 49. 15. A personal letter from Dr. W. W. Theisen includes the following explanation: "This total of $12,940 does not include expenses for tests which in the main are charged to the schools in which they are used. The total test hill would approximate $?,800 per year. It is rather difficult for us to say Just how much of the above totals would be chargeable to a research bureau if we were organized as such.... In fact, it seems almost impossible to draw a sharp line between research and administration. ... My guess would be that on a comparative basis you should perhaps charge approximately $4,000 against research exclusive of tests." 16. San Francisco Public Schools, Department of Educational Research and Service, Summary of Activities, 1928-1929 (Bulletin No. 5, July 15, 1929), mimeographed, 22 pp. 1 7 . San Francisco Public Schools, Bureau of Research, Adult Education and Evening Schoole, Resume of Activities, August 1933 - June 1935 (Bulletin No. 70, June 1935), mimeographed, 5 PP. 18. G. A. Works, et al., Philadelphia Public School Survey, 1937, II, 223-31* · 19. Ibid., p. 226. 20. Chicago Public Schools, Report of the Department of Child Study and Pedagogic Investigation, July 1899 to July 1900, p. 7. 21. Chicago Illinois, Board of Education, Annual Report of the Superintendent of Schools, 1936-37, p. 273. 22. Chicago Public Schools, Sixty-Fourth Annual Report of the Board of Education, I918, p. 43. 23. D. C. Rogers, Letter to LeRoy A. King, Philadelphia Board of Education, January 21, 1937 (consulted in Et·. Rogers' office). 24. Information on expenditures of the bureau has not been available. On account of the different nature of this Chicago bureau from the others surveyed in this