Education in Minnesota

PART I History of Education IN Minnesota

BY

DAVID L. KIEHLE, LL. D.

EX-STATE SUPERINTENDENT OF PUBLIC INSTRUCTION.

LATE PROFESSOR OF PEDAGOGY IN THE

MINNEAPOLIS ,

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Preface

We study the history of institutions in order the better to understand our own. We begin by studying- our own, after which we study those that will help us interpret the one under which we live. In education -if^will be found a very interesting as well as profitable study to notice how old forms and ideas have been incorporated in the systems of the present, and how new ideas are struggling for recognition and a place. Our state is near enough to the past to feel the power of a system of aristocratic education, and at the same time to be fully possessed with democratic ideas of a practical education for all the people.

Upon the invitation of the State Historical Society I had the honor to prepare and present before that society at its annual meeting a History of Education in Minnesota. Upon the basis of this address I have prepared this volume with special reference to our educational public. Its plan is to indicate the development of the permanent factors of our school system, and to show' the place of our system in those of the present day.

If this contribution shall prove to be in some

4 PREFACE

measure helpful to a better understanding of what we are, and toward what we aspire in a genuine education for all the people, and so make us wiser educators and better citizens, I shall not count my task unfruitful.

D. L. K.

Contents

CHAPTER

I. Territorial Organization 7

II. Common Schools under the State Government 17

CHAPTER I. Territorial Period

The planting and fostering of a system of education in a new state is the most far-reaching event in its history. The pioneers who did this service stand as the representatives of the world's civilization at its high water mark. These men and women of that early day brought with them the courage and endurance necessary to face the hardships and dangers of unsubdued nature in climate, land and flood and still held by unsubdued savage life. They opened up highways of travel, built towns and factories, and more than all, they brought in their own characters and ideals the best of modern life in homes, churches and schools. They sought not merely lands and wealth for themselves, but they laid the foundations of a system of education in which their children should inherit the learning and culture of the world's historv, and so make themselves a part of the continuous history of a Christian civiHzation. Standing as we now do in the enjoyment of the fruitage of this great system in its full vigor and maturity, abreast of the age, and respected by our sister states for what we have done, and still promise for the future, we review with pride the record of our fathers.

Of those most prominent in this early public service there remains with us only our venerable fellow citizen, Ex-Governor Ramsey/ still the honored president of our State Historical Society, who, in his public and private capacity has rendered invaluable aid by his wise counsel in the erection of this noble structure, and of which he might with modesty say with the traditional founder of the old Roman state, "Quorum magna pars fui." We congratulate our respected fellow citizen that it is his privilege to witness the magnificence and the beneficence of this superstructure of education, the cornerstone of which he helped to lay in those troublous times.

The honor due these builders of our state is enhanced in the fact, that, besides subduing the wilderness and savagery of this new world, they had to establish the institutions of a Christian civilization in opposition to the corrupting vices ^Deceased since this chapter was written.

of greed and animalism that always attach themselves to a vigorous and exuberant life of enterprise and prosperity. While the dregs of civilization fostered houses of debauchery, drunkenness and licentiousness, these men planted schoolhouses, churches and homes of love and virtue. May their memories ever be cherished, and their examples of courage and virtue be an inspiration to the youth for whose education they have made provision.

The Beginning.

The spirit of our modern civilization was active in education before the state as an institution had organic form, and long before the elements were at hand for the organization of a state system. When Minnesota first became known as a territory in 1849, there were but three centers of civil and social life so far developed as to furnish starting points for schools, namely, Stillwater, St. Paul and St. Anthony. At these points were elementar}^ private schools — Miss Hornbeck (Mrs. H. L. Morse) at Stillwater, Miss Backus at St. Anthony, and at St. Paul, Miss Bishop and Miss Scofield. Two years before. Dr. Thomas S. Williamson, a pioneer missionary to the Indians, in the catholicity of his spirit took in the higher interests of the white people of St. Paul, wrote to Ex-Governor Slade of Vermont,

President of the National Popular Education Society, representing that in this village there were some thirty-six children of school age, and requested that a teacher be sent them. In response to this appeal Miss Bishop came. She has described her schoolhouse as a log hovel some 10 by 12 ft., covered with bark and chinked with mud, and previously used as a blacksmith shop. On the sides, pegs were driven into the logs, and upon them boards v/ere laid for seats. This little log schoolhouse was located on St. Anthony street — the old site of the First Presbyterian Church. It is also memorable in being the place where the first public school meeting was held in November, 1849, immediately after the organization of the territory.

Christian Schools.

Inasmuch as the earliest educational influences were represented in the missionary spirit of individuals and Christian denominations, this seems to be the place to recognize the continued enterprise of these high-minded men and women down to the present day. Their work has not been superseded by the more comprehensive plan of the state that followed. With the specific aims of providing an educated laity and ministry, they also established schools of hia-her learniner for

IN MINNESOTA ii

all who would avail themselves of these advantages.

In 1853 the Baldwin school in St. Paul, open to both sexes, was incorporated, and in the following year Baldwin College was opened to young men. The sparsely settled condition of the country, the unorganized condition of society, accompanied by the financial stress of 1857, and followed by the civil war of 1861-65, arrested all educational enterprises, so that we must look for their continued history in the years following. In 1874 through a bequest of Charles Macalester of Philadelphia the name of Baldwin College was changed to Macalester College, and it was permanently located with buildings for instruction and residences for professors on its present campus of thirty acres in St. Paul, under the presidency of Rev. James Wallace, Ph.D. It is deserving of record that the founding of this college is chiefly due to the laborious efforts of Rev. Edward D. Neill, D.D., the pioneer missionary and educator who came to this state in 1849. ^6 ^^'^'S not only the servant of his own denomination, but as a public spirited citizen and cultivated scholar, he was identified with the civil life of the state, and was one of the influential leaders in developing its educational system, as we shall have occasion to notice further on.

The Methodist denomination moved early in estabhshing Hamline University in 1854, formally opened to men and women in 1857. It was located at Red Wing, which "in 1849 l^^d a population of 305, — 300 being Sionx Indians, and the five being two missionaries with the wife and child of one, and the government farmer." "In all, between the years 1857 and 1869, the university graduated 14 women and 9 men."

Hamline University, after a struggling career of many years, owing to conditions already noted, dates its new and prosperous history after its removal to its present location between the Twin Cities in 1869, and its re-opening in 1880 as a collegiate institution under the presidency of Rev. D. C. John, D.D. (1880-1883), and Rev. George H. Bridgman, D.D., its present administrative ofificer and president.

The ending of the Civil War and the established union of the divided states marks the beginning of the larger industrial and educational prosperity of the state. Every religious denomination has been active in contributing its influence to the upbuilding of the state in intelligence and morality. The Bishop Seabury Mission, chartered in i860, includes the system of academic and divinity schools located at Faribault. These stand as a monument to the enterprise and philanthropy of the Episcopal Church.

At Northfield, in 1867, was opened the preparatory department of what in 1870 took permanent form in the opening of Carleton College under the presidency of Rev. James W. Strong, D.D., who has just closed his long and successful administration.

In 1864 St. John's College was established by the Order of St. Benedict and located at Collegeville. Following the sixties the religious and educational spirit of the state, Protestant and Catholic, multiplied schools and academies in all parts of the state, and sq making the best possible provision for the elementary and higher- instruction of our youth in the absence of the more comprehensive system which the state has since provided.

Appended, will be found a list of the secondary and higher institutions now established and supported by private benefactions and religious associations of loyal citizens of the state, who in addition bear their full share in support of our public school system.

The noticeable characteristic of our own, as of all educational history, is in this, that provision is first made for the higher education and leadership of those who control and give direction to the institutional life. If society has an intelligent, virtuous and philanthropic leadership in a few good men and women the masses will follow and obey in confidence. Then again, these movements find support among a class who are impressed by the greatness of an institution, and who are pleased to be identified with an institution that receives public honor. These will often help to build capitols and monuments before they build homes for their own children. For all these reasons the university movement m territorial days was a more engrossing subject than the public schools. However, all elements of the system were in view from the first, as we shall see.

The history of education in Minnesota belongs to a second great chapter of our nation's history, which dates from the Ordinance of 1787, when the old states of New England, New York, and Virginia ceded their claims to territory in the northwest to the General Government, and when this new empire of the great west began its history, estabHshed on the "trinity of principles, free labor, free religion, and free education." At that time the Government set apart one-thirtvsixth of the public domain — section sixteen of each township — for the support of common schools. In 1848, upon the organization of the Territory of Oregon, the national grant to common schools was increased to two sections in each township-section, — number thirty-six being added.

The first Assembly of the Territory of Minnesota convened September 3, 1849. Its Governor, the Honorable Alexander Ramsey, in his message presented the interests of education in these words. "The subject of education, which has ever been esteemed of the first importance, especially in all new American communities, deserves, and I doubt not will receive, your earliest and most devoted care. From the pressure of other and more immediate wants, it is not to

Alexander Ramsey was born near Harrisburg, Pennsylvania, September 8, 1815. His parentage was Scotch- Irish on his father's side and German on tliat of his mother. At eighteen he attended Lafayette College, then read law in Harrisburg, attended law school at Carlisle and was admitted to practice in 1839. His political life began in 1840 with the Harrison campaign; he was a member of the lower house of Congress from 1843 to 1847, and the year following was made chairman of the whig state central committee in the campaign which resulted in the election of General Zachary Taylor to the presidency. Upon his inauguration, President Taylor appointed Mr. Ramsey Governor of the Territory of Minnesota, April 2, 1849, and he served four years. In 1859 he was elected the second Govenor of the state, serving two terms. In 1863 Governor Ramsey was chosen United States Senator, and was re-elected in i86g, serving twelve years. Governor Ramsey lived to see the development of the state in all its interests with which he had been long and closely identified. He died at his home in St. Paul April 22, 1903.

i6 HISTORY OF EDUCATION

be expected that your school system should be very ample; yet it is desirable that whatever is done should be of a character that will readily adapt itself to the growth and increase of the country, and not in future years require a violent change of system."

The territorial school code made provision for, (i) The appointment of a Superintendent of Public Instruction, — Edward D. Neill being the first, and at the same salary as the Treasurer and Auditor — $ioo per annum. (2) The division of the township into districts, whenever the district contains ten or more families. (3) The levy of a county tax of two and a half mills for the support of schools, to which was added fifteen per cent of all liquor licenses and fines for criminal offense.

The first report of Superintendent Neill for the year 185 1 gives eight districts in Ramsey County with three school houses valued at $1600, and four districts in Washington County, but with no school houses.

ALEXANDER RAMSEY

CHAPTER 11.

Common Schools Under the State Government.

For the permanent organization of our common school system we must pass on to the organization of the state government and the adoption of the Constitution.

The record of the proceedings of the Convention which began its sessions July 13, 1857, gives us a view of the interesting problems thai were then considered and adjusted regarding the administration of our school fund.

The Administration oe School Funds.

Prominent was the question whether, inasmuch as the public lands were designated as the sixteenth and thirty-sixth sections of each township, the revenue accruing should not be administered by township authorities for the support of the schools of the township in which the lands were located. In favor of this policy, two reasons were urged ; First, that instead of appropriating the lands in bulk as they were for the university, they had been distributed in townships, which would seem to indicate that thev were for i8 HISTORY OF EDUCATION

the respective townships in which they were located. Second, that to put all these lands under the control of an administration located at St. Paul savored too much of centralization, by removing them too far from the people. This view was supported by the recent experience of our nearest neighbor, Wisconsin, where, through the mismanagement and defaulting of state ofificers, the lands were sold at nominal prices to speculators, and the interests of the state largely sacrificed.

On the other hand it was held ; First, that although these lands were located by sections of townships, it is expressly stated in the act authorizing a state government, that these lands "shall be granted to said state, for the use of schools." (Sec. 5) Second; that there was great disparity in the value of these lands, and that consequently great hardship would be entailed upon some, while other townships would be made quite self-supporting, and for reasons such as these : Some lands were more valuable than others, because of their fertility or their location near commercial centers. In some townships the school sections were valueless, being located in swamps or lying under water, while in other townships these sections had already been preempted, and, therefore, were not available for school purposes. The wise conclusion of the convention is incorporated in Article VIII, Sec. 2, of the State Constitution, in which the public school lands are to be administered by the state for the scholars of the state, to be sold at public sale and not more than one-third in two years, one-third in five years, and one-third in ten years, the most valuable lands to be sold first ; and that the principal shall constitute an inviolate permanent fund, the income from which shall be distributed according to the number of scholars between the ages of five and twenty-one years.

This conservative spirit of the convention was expressed in subsequent legislation (1866), prohibiting the sale of school lands for less than five dollars an acre; and in 1875 by amendment to the constitution providing for the safe investment of school funds in bonds of the State of Minnesota and of the United States. In 1896 an additional amendment provided for the investment of school funds in bonds of counties, school districts, cities, towns and villages of the state to a very limited amount under the direction and with the approval of a designated board of commissioners.

The history of the common school fund of Minnesota bears a most honorable testimony to the business sagacity and the conscientious faithfulness of the officers of the state who have been charged with its administration. The table appended shows the increase of this fund by fiveyear intervals to the present, when it amounts to $14,316,389.

State Aid to Education.

A vital principle in public education was involved in this act of the constitutional convention, which extended far beyond the mere method of administrating public funds, namely this : Shall the children be treated as wards of the township and county, or shall they be recognized as the wards of the state? And, shall responsibility for their education be left with the township, or with the state?

In deciding that national grants were given to the state for the children of the state, the convention impliedly affirmed that the state must assume its share of responsibility, not only in requiring townships to support their schools^ but also in contributing to the support of the schools over which they have control.

This principle was long in receiving substantial recognition in state financial support of the common schools. The county two and a half mill tax, which had been levied and apportioned by counties "in proportion to persons between

4 and 21 years of age" had been changed in 1877 to what was substantially a compulsory district one mill tax ; and yet by some this was called a state mill tax.

In his report to the legislature of 1879 State Superintendent Burt exposed the fallacy of this view, and urged with great force the reasonableness and importance of state support for common schools. But it was not till 1887 that upon the re-presentation of the pressing importance of this matter by State Superintendent Kiehle, the principle was recognized, and a state one mill tax was levied for the support of common schools.

A second principle established by the constitutional convention was involved in the question whether the distribution to townships should be made according to school population or to scholars. It was decided for the latter, that "the income arising from the lease or sale of said school lands shall be distributed to the different townships throughout the state in proportion to the number of scholars between the ages of five and twenty-one years." This involved the next question, Who are "scholars?" And this was finally decided by the legislature of 1887, that in view of the fact that the word "persons" was rejected by the framers of the constitution, and the word

"scholars" inserted, the word must be taken in its literal, restrictive sense, and not as synonymous with either "persons," "children," or "youth." In other words, "scholars" are those who attend school, and consequently, the distribution of public school moneys shall be for their benefit and for no others. This decision took form in the present statute of 1887, which distributes the national and state school apportionment "in proportion to the number of scholars between the ages of five and twenty-one years who have been enrolled and have been in attendance forty days in the public schools." It was also provided in this same statute (1887) that the schools should be held for not less than five months each year.

Considering that the early settlers of the state were of various sorts and conditions, from many different states of the Union, and diflferent countries of Europe, generally in straitened circumstances and struggling for a livelihood, we cannot wonder that it was quite impossible for the few public spirited to dispose the rural population to great sacrifice for the education of their children. Hence the support and encouragement given by the General Government was a necessity in the early organization of our school svstem.

State Aid for Special Rural and Semi- Graded Schools.

As we have noted the beginning- of state aid to common schools, it seems best to complete the history of this movement of state aid down to the present, and show how large a place it has had in promoting education in the rural districts.

The next step in progress was to offer special aid to districts affording additional advantages for the education of their children in long terms, better prepared teachers and better equipped school buildings. These schools, according ^o their advancement, were classified as rural, semi-graded, graded schools and state high schools. These schools are placed under special supervision, and are afforded aid ranging from one hundred twenty-five to fifteen hundred dollars each. (For fuller details see Part II.)

This generous aid of the state has proven a marvelous stimulus to education. The amounts given have encouraged districts to make corresponding expenditures in schoolhouses and equipment, and instead of making the people dependent upon the state they have grown ambitious to do more for themselves.

And still more has the state done for the improvement of the common schools.

Libraries.

In the year 1885 the legislature passed the library law, which provided that districts which make suitable provision for the care of their libraries, and make purchases of books from the authorized list shall receive one-half the amount expended up to ten dollars for the first statement, and five dollars for each subsequent statement — these statements being made annually. In 1895 this allowance was doubled.

By the aid of this appropriation rural and village schools, many of which had no books but their ordinary text books, have been supplied with the world's choicest literature, in books of biography, travel, geography and history, which make school life and studv one of delight and intellectual growth.

State Supervision of Education.

Competent supervision is essential to the development of any system of education, and equally essential to its efficient conduct. The superintendent represents in his character and ideals the maturest results of experience as they find expression in the best public sentiment of the times.

The State of Minnesota was led in the building up of its educational system by a man who brought with him the classical culture of the east, and a broad view of the moral and intellectual demands of an American civilization. Edward D. Neill was the first territorial superintendent, the first chancellor of the University of Minnesota, and the first State Superintendent of Public Instruction, in which he served from April I, i860 to May i, 1861. In his first report (i860) he makes the following recommendations :

1. Provision should be made for county superintendents of schools. The township plan of supervision had proven utterly inadequate.

2. The civil township should be made the unit of district organization.

It is noticeable that having adhered to the neighborhood plan of small districts, we are now trying to remedy the evils of small districts, by some plan of combining districts and transporting pupils.

3. The school fund should be distributed according to scholars in attendance and not according to a census of persons of school age.

This recommendation was adopted some twenty-five years later.

4. A uniform series of text books should be provided for the state.

5. Districts should be aided in obtaining school libraries at wholesale rates.

Following Dr. Neill, B. F. Crary was appointed, and served from May i, 1861, to Jan. i, 1862. At that session the legislature abolished the office, and assigned its duties to the Secretary of State. Under this law David Blakely and H. C. Rogers served until April i, 1867, at which time the ofifice was re-established and Mark H. Dunnell was appointed, and served under his re -appointment till his resignation, Aug. i, 1870.

Mr. Dunnell immediately undertook the more complete organization of schools by a revision of school registers and the preparation of a complete set of blanks for the use of teachers and school officers. He appointed and held meetings with school superintendents, which greatly increased popular interest in education. He organized teachers' institutes for the rural school teachers, and by his personal attention to them and his popular addresses made them powerful for good.

The resignation of Mr. Dunnell was followed by the appointment of Horace B. Wilson who served till the expiration of his third term, April 1875. Mr. Wilson brought to the office the scliolarship of a professor of mathematics and the practical experience of a county superintendent of schools. His service to the state was felt in the enlarged powers and increased duties of his office conferred by the legislature upon his recommendation. Mr. Wilson made five reports which are of permanent value for the able discussions they contain of the leading topics of school administration.

David Burt succeeded to the office April 5, 1875, and continued until his resignation Sept. I, 1 88 1, a few weeks before his decease, which occurred Sept. 24, 1881.

Air. Burt came to the office from the county superintendency, and for over five years diligently fostered every department of the educational system. He was a man of penetrating and clear intelligence, able to compass the whole system in its purpose and plan, and equally able to appreciate all details in applications of principles. He urged and secured the enactment of the law appropriating school funds according to the number of scholars attending school. He made a vigorous but unsuccessful opposition to what has been known as the state text book law, which provided for the selection of a series of books and a fifteen year contract for their supply to the schools of the state. The reports of Superintendent Burt contain much valuable material, the result of careful research and arrangement. Succeeding Superintendent Burt came David L. Kiehle, the principal of the state Normal School at St. Cloud and previously county superintendent of schools. He served in seven successive terms from Sept. i, 1881, to Sept, i, 1893. It was his fortune to assume the duties of the office just as the state was maturing into social and financial power, and prepared to continue the organization so well established in previous administrations. Taking the work as it came to him, the following are the more important measures adopted as parts of the school system during his administration :

1. The more complete organization of institute instruction by which, with an increase of the state appropriation from $3,000 to $7,000, and a special conductor provided by each of the normal schools, each county of the State has been provided with an institute annually.

2. A State tax of one mill has been established, which increases the school fund annually appropriated to about $1,000,000.

3. A public school library fund was established which provides (i) for the selection of a choice list of books by special commission consisting of the State Superintendent of Public Instruction and the presidents of the four State normal schools; (2) a payment by the State, up to $20, of one-half of the first order for books selected by a district, up to $10 of one-half of the second order, and up to $5 of one-half of any subsequent order, and (3) an annual appropriation of $10,000 to meet the requirements of the law.

4. A system of summer training schools of four weeks each with a present annual appropriation of $20,000.

5. The reorganization of the State high school system and the appointment of a high school inspector as explained elsewhere, by which free secondary tuition is now provided in 141 State high schools, preparatory to the university and the professional schools.

6. As regent of the university he formulated the plan for the School of Agriculture, which has developed to its present proportions on lines then laid out.

Upon the resignation of Superintendent Kiehle, William W. Pendergast, former assistant Superintendent of Public Instruction, and at this time principal of the School of Agriculture, was appointed and continued in service till January i, 1899. Superintendent Pendergast brought to the office the mature experience of a teacher, a county superintendent and an officer of the department, and discharged the duties of the office with efficiency and wisdom.

From January i, 1899 to January i, 1901, John H. Lewis was appointed and discharged the duties of the office. A teacher and city superintendent of schools of long experience, Superintendent Lewis administered the of^ce with marked energy and success. Upon his recommendation the present system of state examination of teachers was established by statute, and put into successful operation, and the entire system given a new impulse.

Upon the completion of Superintendent Lewis's term, John W. Olsen was appointed and has now entered upon his second term of service. His record as a successful county superintendent of schools has commended him to the confidence of the public, and is the guarantee of a faithful administration.