Consolidation of country schools

Front matter

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Hollinger Corp.

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Table of Contents

Page Introduction ....... 2

Situation in General ..... 3

Size and Cost of Country Schools .... 4

Introduction

Agreeable to the request contained in the resolutions adopted by the Illinois Farmers' Institute at the Bloomington meeting in February, 1903, the College of Agriculture proceeded at once to gather reliable information.

Letters were sent to all the states of the Union asking what had been done, if anything, and how it had succeeded. Opinions were collected both from professional educators and from farmers who had experienced the workings of the system, all from sources the most diverse. Aside from this, a trusted agent of the institution visited the region in Ohio where the system had been longest in use, with instructions to note all the conditions found both favorable and unfavorable.

The investigation was begun and conducted without bias or previously formed impressions as to the merits or demerits, advantages or disadvantages of this method of administering the school system. As the investigation proceeded, however, the conviction that is inevitable to anyone who really studies this question gradually forced itself upon the consciousness and, in spite of efforts to the contrary, the reader will detect its presence in the mind of the writer at the time of putting the data in final form.

It is therefore the more necessary to assure the reader that this conviction arose during and by virtue of this investigation and that it did not exist in advance; indeed there was no opportunity for pre-existing opinions because the writer had never before given the slightest attention to the details of the subject.

E. Davenport, Dean, College of Agriculture, University of Illinois. Urbana, Illinois, January, 1904.

THE SITUATION IN GENERAL

In pioneer times, when population was scattered and before men had commenced to gather much in cities, most of the schools were country schools. These were generally taught by men. They were sometimes ignorant it is true, but more often the "dominie" was the local preacher and very frequently indeed he was a college student bringing the learning of the world to the common school, where by personal contact, individual influence and the enthusiasm of youth he became a veritable inspiration. In this way many a statesman, jurist, and journalist made his first impression on some country school, taught during vacation to eke out expenses. Now all this is changed. With the development of the times and the diversification of industries the proportion of the people living in cities has vastly increased, as it must and should, and at these centers of population schools have been established the like of which had no existence in pioneer times. These schools have been graded and developed almost to the extent of becoming small colleges; indeed in the 'west the city high school, which prepares for college as well as for life, has almost completely prevented the coming in of the old fashioned academy.

Meantime the country school has not developed. Speaking relatively, if not absolutely, it has gone backward, because the old-time "good teacher" has gone to the city and the old-time "good scholar" has followed him, often taking the family and their interests along never to return, all operating to sap the vitality of the country school, not only as to attendance but as to personal interest and financial support as well. Thinking men have long since discovered that if this emigration to the cities for higher education is to continue the country as well as its schools will be sapped of its vitality, and this thought has taken form in the expression that the country child is entitled to as good educational privileges as the city child, and this too without breaking up the family home; that anything short of this is unfair to the child and unprofitable to the community.

Eealizing the force and meaning of conditions such as these the attempt was made to discover to what extent they actually exist, what has been done for their amelioration and with what success if any.

Size and Cost of Country Schools

In a special bulletin published by the Superintendent of Public Instruction of Michigan, in April, 1902, it appears that of the 6,453 districts of the state, fifty-one had two pupils or fewer and held no schools ; that eighty-three schools of the southern peninsula had five pupils or fewer; that the average attendance of these schools was three; that these eighty-three schools cost $13,636.00 or an average of $9.95 per pupil per month, or $99.50 each per year of ten months, though the actual number taught averaged fewer than six. It also appears that 1,004 schools have fifteen or fewer; that the average attendance of these schools was but eight ; that the thousand schools cost $200,478.13 or an average of $199.67 each, and that the cost per pupil was $4.16, per month or $41.60 per year of ten months. The same report says that the average cost per pupil in the city schools of Michigan is never over $19.40 per year of ten months, high schools included, the average cost being much less.

From this it appears that over a thousand country schools in Michigan are maintained at a cost per pupil more than double that of the most expensive city schools. In addition to this fact the Superintendent estimates that the country people of Michigan pay out annually over a million dollars for tuition and other expenses of their non-resident pupils from the country seeking higher learning in the city schools.

From the report of the Superintendent of Public Instruction of Indiana for 1900, as quoted in a special bulletin on Rural Schools, published by the "Township Trustees of Tippecanoe County/' it appears that Indiana has 108 schools with an attendance of five pupils or fewer, ten of which have but one pupil; that 487 have between five and ten, and 1,253 between ten and fifteen, or in all 1848 with an attendance of fifteen or fewer.

From the same source it appears that in 1879 the cost of city schools in Indiana was $7.48 per pupil, and of country schools it was $6.21 per pupil, but that in 1899, twenty years later, the cost of city schools had dropped to $7.07, while the cost of country schools of all sizes had risen to an average of $10.50, showing that the cost of elementary education in the country is over forty-eight per cent, higher than the cost of education in the city including the high school course.

The Missouri Superintendent's report for 1902 shows that more than one-fourth of all the schools of that state have fewer than twenty pupils and that 575 have fewer than twelve.

The Iowa Superintendent reports in 1901 that one-half the independent districts and three-fourths of the sub-districts of that state have an average daily attendance of less than twenty, and that 502 independent districts and 2,705 sub-districts have an attendance of less than ten.

From this it appears that, largely due to the emigration of the more advanced pupils to the city schools, the country schools are growing not only smaller and less efficient but relatively more costly. On this point the Trustees of Tippecanoe county, Indiana, say, "These conditions have come upon us so gradually that they may have escaped our notice, or if our attention has been called to them there has seemed no remedy. There is but one remedy and that is to collect the pupils together into larger groups by means of transportation."

Teachers Available foe Country Schools

The inability of small, weak schools, such as have been' described, to pay large wages is manifest ; but it is also well to realize the available supply of teachers for the country schools in general as they are today. In other words, "what are their chances of getting a 'good teacher' ?"

On this point the Iowa report of 1901 says, "of the 21,034 teachers licensed in 1900, 3,560 had no experience whatever in teaching, and 4,208 had taught less than one year." Thus 7,768 or more than one-third were inexperienced, not to mention the large and unknown number of "experienced" but unsuccessful teachers.

Iowa further reports that of the 21,034 licensed teachers, 7,228 or oyer one-third hold third grade certificates, and of this number 6,167 or over six-sevenths were issued to females, "presumably young girls just out of school, many of them not having completed even the common school course." And the Superintendent adds, "This department has advised the county superintendents not to issue third grade certificates except where it is unavoidable in order to procure teachers to supply schools that otherwise would have to be closed for want of teachers. This policy has been universally followed by the county superintendents of Iowa. They report that they issue third grade certificates for the purpose of filling the schools." * * * "Many of them (the candidates) have little or nothing (in the way of schooling) beyond the district school which they propose to teach."

The above is a fair sample of what runs through the reports from nearly all the states when this subject is touched upon, and they nearly all not only allude to it but treat it at length and with more evident concern than any other problem connected with the public schools. Moreover they all arrive at the same conclusion, namely, that the only remedy is fewer schools and larger ones, emphasizing the necessity of a less number of teachers at better wages and therefore securing not only better talent and training but also a better division of labor and better supervision.

What is Meant by Consolidation

By Consolidation of Schools is meant the uniting of two, three or more small and weak schools into one that shall be large enough in point of numbers to be interesting and strong enough in the way of money to afford a comfortable building, one or more good teachers, and reasonable facilities for work. It also means that outlying territory with but few children shall be combined with a near-by school that is strong, rather than be organized into an independent but weak district. In its fullest sense it means the uniting of all the schools of a township into one or two so located as to be most accessible, though not necessarily at the geographic center.

Consolidation either in full or in part means the transportation of a portion of the pupils, and this is one of the problems. It is generally accomplished in covered wagons, artificially warmed, holding fifteen to twenty children and driven by reliable men under contract and bonds as to regularity and good behavior. At first thought this would seem expensive, but experience has shown that this is not the difficulty for it is cheaper to transport a few children than to establish a school for them. This is because a wagon is cheaper than a school house, horses are cheaper than fuel, and drivers cost less than school teachers.

Consolidation also means, where small districts already exist, some changes in buildings. These changes are sometimes effected by moving together two or more of the little old buildings, or by adding a portion to one, thus making a two or three-room house. In other instances new buildings are erected. All these ways are open. A makeshift seems often best at first until the plan is in full operation, when a permanent building seems certain to follow in good time. Where an expensive permanent building is erected at first and a graded school established the cost of this better school more than swallows up the saving from consolidation and the public mind is sometimes confused and even misled as to the real source of increased expense.

What Has Been Done

From the various sources of information consulted it appears that consolidation commenced in Massachusetts under the law of 1869, and was first operative in Quincy in 1874, since which time "more than 65 per cent, of the towns ( townships) have found it necessary or advantageous to close and consolidate some schools." In 1893 Superintendent Seymour Eockwell wrote, "For eighteen years we have had the best attendance from transported children ; no more sickness among them, and no accidents. The children like the plan exceedingly. We have saved the town (townships) at least $600.00 a year/'

From this and from independent centers the plan has spread until it is in operation to a greater or less extent in twenty states, not of a single section of the Union, but of all sections, notably in Massachusetts, Connecticut, New Hampshire, Vermont, Ohio, Indiana, Iowa, and Kansas, and to some extent in Maine, Rhode Island, New York, Pennsylvania, Wisconsin, Minnesota, North Dakota, South Dakota, Nebraska, Missouri, Georgia and Florida, and at this writing the first consolidated school in Illinois is about to open at Seward, Winnebago County.

Massachusetts reports that in over 65 per cent, of the towns (townships) consolidation in whole or in part is in operation, and that in the year 1901-2 the sum of $151,773.47 was expended for the transportation of children. Some of this goes for hired drivers, some for street car fare, some to parents for delivering their children, and some to patrons who convey not only their own children but those of their neighbors as well.

Iowa reports that consolidation has been adopted in sixtythree districts of twenty-eight counties and transportation in eighty districts of thirty-five counties.

As showing what has been done in Iowa and as a sample of what is being done in many states a brief extract* is added giving particulars of the Consolidated School at Buffalo Center :

"The central school is located only one mile from the western boundary line of the district, thus making it extremely difficult on account of the distance to transport the children from these two remote portions of the township. The two rural schools maintained by the board are con- *Prom State Superintendent's Report, 1901.

sidered superior in many ways to the ordinary school, since they are. under the supervision of the principal of the central school, and are maintained for the same length of time each year as the central school.

"Contracts for the year 1900-1901 provide for the transportation of ninety-eight children. Six routes are laid out and one team is provided for each.

"The greatest distance the children most remote from the central school on the different routes are conveyed is as follows : Route 1, three and one-fourth miles; Route 2, four and one-half miles; Route 3, five and one-half miles ; Route 4, five and three-fourths miles ; Route 5, five and one-half miles; Route 6, six and one-fourth miles. The average distance the children are conveyed on the longest route is about four miles.

"What can be said of the roads? Comparatively speaking, this is one of the newer counties, and roads have not been so thoroughly graded and drained as in old settled sections ; consequently, the roads are not so good as in many parts of the state.

"What length of time is required to convey children to and from the central school? The time required depends upon the condition of the roads. When very muddy, as was the case when the writer visited the district in 1900, the drivers began collecting the children from 7:15 a. m. to 8:15 a. m., according to the length of the route, and returned them to their homes from 4 145 p. m., to 5 .-45 p. m.

"The compensation paid drivers is $30 per month, except on Route 1, where only $25 are paid. For this amount they are required to furnish their own properly covered, strong, safe, suitable vehicles, subject to the approval of the board, with comfortable seats, and a safe, strong, quiet team, with proper harness, with which to convey and collect safely and comfortably all of the pupils of school age on the route, and to furnish warm, comfortable blankets or robes sufficient for the best protection and comfort for each and all of the pupils to and from the public school building and their respective homes. They agree to collect all of the pupils on the route by driving to each and all of the homes where pupils reside each morning that school is in session in time to convey the pupils to school, so as to arrive at the school building not earlier than 8 :40 a. m. nor later than 8 .-45 a. m., and return the pupils to their homes, leaving the building at 4.00 p. m., or later, as the board may determine.

"They are required to personally drive and manage the team, and to refrain from the use of any profane or vulgar language within the hearing or presence of the pupils ; nor may they use tobacco in any form during the time they are conveying the children to and from school. They are not permitted to drive faster than a trot nor race with any team, and are required to keep order and report improper conduct on the part of pupils, to the principal or president of the board.

"It is further provided between the driver and the board that one-half of the previous month's wages shall be retained to insure the faithful performance of the contract.

"In 1894 the district township was composed of six sub-districts, and required six buildings, six teachers, six sets of apparatus — in fact all of the equipment necessary for one district was required by each of the others.

"The secretary's report of that township for the year ending September, 1894, (before consolidation,) shows that during the year the schools were in session six months and the average daily attendance for the entire district township was ninety.

For the year ending September, 1900. (after consolidation,) eight teachers were employed for nine months, and the average daily attendance was 290. Estimating the average cost of tuition per month per pupil upon the total expenditures for school purposes, we find it to have been $5.03 in 1894, under the plan of separate schools, while in 1900 (under consolidation) it was $2.31."

Indiana reports 181 wagons transporting 2.599 children in fifty-one counties of the state, the largest number being in La- Grange County, where twenty wagons carry 300 children each day and in Whitley County, where seventy-three wagons carry 1,114 children.

What has been done in Tippecanoe County is given here as examples of partial consolidation and as showing what can be gained by the first steps:*

"Last year the pupils of district No. 13, Perry township, were conveyed to district No. 2, at a cost of one dollar per day, saving about $200 to the township. This attempt was successful during the year in nearly every feature. The union of the two schools gave an enrollment of twenty-seven pupils, about the minimum number for a good working school.

"School No. 10, Washington Township, has been very small for some time, last year enrolling but eight pupils. The trustee, J. C. Eckhart, abandoned the school, the contract for transportation being let to the lowest bidder, under bond. The pupils of that district are transported to district No. 2— the Buck Creek High School— at a cost of $1.25 per day, saving about $150 for the township. The distance is about four miles and patrons are well pleased with the service.

"School No. 11, Tippecanoe Township, has been gradually decreasing in numbers for several terms, the enumeration last spring being eleven, with five or six to attend. The school was abandoned and the trustee, J. M. Chenoweth, had the pupils transported to school No. 2, at a cost of $1.25 a day, saving about $150 to the township.

"School No. 3, in Shelby Township, was abandoned about the first of December. The enrollment was but six. This will save about $150. The pupils are easily accommodated in other schools.

"School No. 3, Fairfield Township, was closed by the trustee, Eldon L. Lane. No transportation was provided, no expense was incurred. The school, situated on the township line, enrolled five or six pupils from Fairfield Township and a like number from other townships. The per capita cost of this school was nearly $75 per pupil.

"School No. 5, Fairfield Township, which last year enrolled five pupils, two from this township, burned down during the term and was not

*From Report Superintendent of Public Instruction for Indiana for 1900.

rebuilt, since there were not pupils enough to sustain it. Last term this school was maintained at the rate of $120 per capita cost. The abandonment of this school saves about $450 to the township.

"School No. 10, Wayne Township, was closed by Trustee J. H. Chalk without expense. The school has not enrolled to exceed ten pupils in the last two terms. The pupils were easily accommodated in school No. 6, The abandoning of this school has decreased the expense of the school $300.

"These examples show the growth of the idea of centralization. Much more can and probably will be done next year. Nearly every township could do something in this line and some are so situated that they can do a great deal.

"In the township where the seven village teachers enrolled 218 pupils and the six rural teachers eighty-four pupils, none of the rural schools are to exceed three miles from a village, these villages could easily accommodate every pupil in the township. Eight teachers could do the work formerly done by thirteen and no pupil wouid be transported over four miles. In the township where the six schools enrolled 148 pupils and the five, sixty-eight pupils ; the five small schools are located not over three miles from one of the best two-roomed buildings in the county. Two teachers here could easily do the work formerly done by five and a sixth school near the building might be added. Four of the houses so abandoned in this township are old buildings, which will soon have to be replaced with new ones at a cost of several thousand dollars. Yet the work can be better done at the central building and the same money that gave the township between six and seven months' school would give it eight or nine months. In the township where the four schools, located not over three miles from a village, enrolled forty-five pupils, the village could accommodate three of them without an additional teacher."

Ohio reports consolidation in operation in forty-five townships in twenty counties of the state and the superintendent adds, "I am satisfied there are many more though not reported. In my judgment centralization is a substantial solution of the vexed country school problem." Partly to show what has been done in Ohio, and partly for information on the general subject the following clipping is given in full :

* Centralization of Rural Schools, by C. G. Williams, member of the Board of Education, Gustavus, Trumbull County, Ohio.

"Gustavus is a typical rural township of the Western Reserve covering twenty-five square miles, with a little hamlet composed of eighteen dwelling houses, two churches, town hall, school building, one store, and finally a blacksmith shop at the center, and some eight hundred population scattered promiscuously over the township, with a school enumeration of about two hundred and forty.

* Prom September number, 1902, of the Ohio Teacher. Quoted from Kern's •'The Country School and The Country Child.

DECREASE IN POPULATION

"In common with many rural communities there has been a falling off in population in recent years. In fact there are fewer people living in our township today than there were sixty years ago. No manufacturing, and nothing save agricultural and live stock interests. Less population and fewer children in our schools. The time came when it seemed impolitic to maintain our usual number of sub-district schools. Up to August '98, we had mantained nine sub-district schools as conveniently located as possible, with a free high school at the center of the township, which any pupil was at liberty to attend when he could pass the required examination. Some few of these sub-district schools were attended by twenty to twenty-five pupils ; others had an attendance of five to ten, and one school was kept up for several months for only two pupils. Since the above date we have been accommodating our school population in a five-room building located near the center of our township, to and from which every pupil living more than one-half mile from the center is conveyed at public expense.*

NINE COVERED WAGONS

"Built expressly for this purpose with a view to comfort and health of occupants and owned by the route contractors, call at the home of every pupil in the morning, and return every pupil to his home after school. Our routes vary in length from two and one-half to five miles, and cost us from 68c to $1.55 per day. These routes are let to 'the lowest responsible and satisfactory bidder. In the letting of routes the moral character of the contractor is taken into consideration and he is put under strict bond, not only to do the work, but is held responsible under the Superintendent of Schools for both the comfort and the moral condition and order in his wagon in transit.

CHEAP TRANSPORTATION

"To many people the price at which we are able to let our routes is a matter of surprise. It should be remembered that during the greater part of the year both trips can be made in four hours or less, and that during the balance of the year when more time is required, our contractors (usually farmers with few acres who have to keep a team of horses anyhow) are not very busy upon their farms. We have never yet had any trouble in letting our routes, and of late we have not had enough routes to supply all who would like them.

PROVIDING FOR EMERGENCIES

"Before this system was put into operation some prospective patrons worried a little as to' what might happen should a child be taken ill at school, in some instances a long way from home. Our Board of Education has thought best to provide against that trouble by contracting with a man to take any pupil immediately to his home that the Superintendent thinks should for any reason go home. We have not as yet had to expend over $3 any year for this purpose. It surely is a comfort to a parent to know his child will be brought home if occasion demands it.

*For cut showing routes of travel, see Supt. Rankin's Report, p. 27.

"Speaking of opposition it should be recorded that when the proposition came before our voters for indorsement four years ago at our annual spring election, it was defeated upon a tie vote. Three weeks thereafter the same, or a very similar proposition was submitted to our voters and, with practically every vote in our township cast, centralization carried by a majority of only seventeen votes. It will be seen that public sentiment was pretty evenly divided and that the new system and the new school would have very many critics.

THE REAE TEST

"It is a fair question to ask, how have these opponents been pleased? Perhaps as good evidence as I can bring to the readers of The Ohio Teacher, is the result of an investigation and canvass of our township made by a visiting committee from another county of the state in their efforts to determine how the new system was working. This visiting committee was composed of two members, one of whom was sent here as an opponent, the other as a friend of centralization. Their canvass was made after our school had been in operation two years. This committee spent several days in our community visiting not only the school but many of the parents of the pupils at their homes, and particularly those people who resided farthest from the school. Their report to their own Board of Education (afterward published) shows seven out of fifty-four people interviewed to be yet opposed to centralization. But of the seven opposed to the system six were without children in attendance upon school. This was two years ago. I think public sentiment is even more in favor of the "new way" now than then.

CENTRALIZATION IS HERE TO STAY

"As further evidence that centralization is here to stay attention should be called to the fact that while Gustavus was the first township in this county to adopt this system, since we have adopted it every township adjoining us have adopted it, and at the present time has in operation similar schools. Those who are nearest us seem to be most favorably impressed with its benefits.

"As to the comparative expense of our public schools conducted in the old and new way : The last year in which we worked under the old system our expenses were as follows: Teachers, $2,400; other expenses, $555; total, $2,955.

"Under the new system, for the year ending August, 1901 : Teachers, $1,320; hauling pupils, $1,755; other expenses, $200; total, $3,275.

"Deduct from this $75 received from foreign tuition (not received under old system) and we have an extra expense' of $245 for the well supervised and graded central school as compared with the "hit-or-miss" sub-district way. For the year ending August, 1902, we employed an extra teacher at an expense of $240 more. With a larger daily attendance under centralization the per capita expense is about the same.. Our taxable property is in the neighborhood of $370,000, and our tax rate for school purposes, 9 or 10 mills on the dollar.

ADVANTAGES OF GRADED SCHOOLS

"I need hardly take any of yoflr space in considering the advantages of a good graded school as compared with the average sub-district school. Under a competent superintendent, with large numbers and consequently greater interest and enthusiasm, with better teachers, more satisfactory apparatus, more regular attendance, and absolutely no tardiness, it goes without saying that we have a school beyond all comparison with our former sub-district school. It costs a little more money in our case but we are getting more than value received for it, and when this is true the tax payer who has the interest of the public at heart is satisfied.