Admission to college by certificate

Preface

The study here presented originated in the author's own experience. As Visitor of Schools and member of the Faculty of the University of Texas for some years, the writer has been called upon to assist in the adjustment and administration of entrance requirements. When information was desired concerning the practices relative to admission to college by certificate in other states, it was ascertained that such knowledge could only be obtained by personal correspondence with representatives of the different institutions. No general compilation and interpretation of the various methods used had been made. In response to the local need a large amount of concrete material was collected ; the arrangement and interpretation of the more important part of the material thus gathered with other matter secured by visitation to various state universities may be found in this treatise.

A personal acknowledgment of all services rendered to the author is impossible. Hundreds of letters have been received; the associations and work with colleagues have clarified points and modified the author's views. The services rendered by the officials of state universities in opening their minutes to full inspection were invaluable. For such favors the author's indebtedness can only be admitted ; it can not be liquidated. Each individual who has assisted must consider that he has joined in an effort to render some assistance in solving the general problem of admission to college by certificate.

Four names are gladly accredited with personal acknowledgments. To the late Dean F. W. Moore, of Vanderbilt University, with whom the author collaborated in a study of the literature bearing upon the problem, acknowledgments are made here and elsewhere.

The writer is indebted to Dr. Henry Suzzallo and Dr. Paul Monroe, both of Teachers College, for valuable assistance; to the former for suggestions concerning the general survey of the field, and to the latter for aid in connection with the historical part of the study. To Dr. George D. Strayer, of Teachers Colvi Preface

lege, under whose immediate supervision the study has been formulated, the author owes a debt of gratitude for kindly sympathy and generous assistance. J. L. H.

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1. The Problem 2

2. Related Studies 3

3. Sources and Material Used 5

4. Type Systems 6

5. Outside Aid to the System 7

6. Divisions of the Study 8

CHAPTER II Educational Conditions in the United States About 1870

1. Table I : Data Concerning All State or Territorial Universities

Founded and Partially or Fully Organized by 1870 14

2. Supplement to Table 1 15

3. Observations based on Table I and its Supplement 18

4. Table II : Instructors and Students in State Universities in

1870 22

5. Observations based on Table II 22

6. Table III : Instructors and Students in Other than State Uni-

versities in 1870 25

7. Observations based on Table III 25

8. Table IV: Instructors and Students in Colleges of States Not

Having State Universities in 1870 27

9. Observations based on Table IV 27

10. Table V: Colleges Reporting only Academic Students in 1870. 28

11. Observations based on Table V 28

12. Table VI : Primary and Secondary School Systems in the

Southern Division of the United States about 1870 30

13. Observations based on Table VI 31

14. Table VII : Primary and Secondary School Systems in the

Mountain and Pacific Division of the United States about 1870.. 33

15. Observations based on Table VII 34

16. Table VIII : Primary and Secondary School Systems in the

Middle West Division of the United States about 1870 35

17. Observations based on Table VIII 35

18. Table IX: Primary and Secondary School Systems in the

Northeastern Division of the United States until 1870 36 viii Contents

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19. Observations based on Table IX 36

20. No Admission to Early American Colleges by Certificate and

Reasons Why 38

CHAPTER III The Origin and Evolution of the System

1. Origin 45

2. Recapitulation 49

3. Evolution of the System 5°

4. First Decade of the Certificating System 50

5. Second Decade of the Certificating System 60

6. Third Decade of the Certificating System 68

7. Fourth Decade of the Certificating System 76

8. Table X : Data Concerning Certification in Nine State Uni-

versities 82

9. Observations based on Table X 82

10. Table XI : Dates of First Requirement or Acceptance of Sub-

jects for Admission by Nine State Universities 85

1 1. Observations based on Table XI 85

12. Table XII: Subjects Accepted for Entrance by Nine State

Universities Distributed by Decades 88

13. Observations based on Table XII 88

14. Table XIII : Enrollment Compared with Numbers of Schools

Accredited by Nine State Universities 91

15. Observations based on Table XIII 91

Chapter IV

Present Day Conditions of Admission to College by Certificate in the United States (1911)

1. Type One: The New England College Entrance Certificate

Board 100

2. Type Two : Control of Inspection and Selection of Accredited

Schools Located in a State Board 102

3. Type Three: Schools Under Control of High School Board

Employing Special Inspectors 104

4. Type Four: Schools Accredited by a State Association of

Colleges 108

5. Type Five : Control Lodged in State Universities 109

6. Type Six : Control Through State Departments in

7. Type Seven: Joint Control by State University and State De-

partment of Education 112

Contents ix

8. Special Types: page

(a) The Vanderbilt Plan 113

(b) The Columbia Plan 113

(c) The Harvard Plan 114

(d) The Chicago Plan 116

9. District Types : Commission Control 116

10. A Step Toward a National System 118

11. Methods Used in Testing Schools:

(a) Reports 118

(b) Inspection 119

(c) Examination of High School Pupils 120

(d) Records of Students in College 121

12. Form, Content and Acceptance of Certificates 123

13. Table XIV: Requirements for Admission to B.A. and B.S.

Courses of Thirty-Nine State Universities, in 1911 126

14. Observations based on Table XIV 126

15. Observations based on Table XV 130

16. Table XV: Maximum of Credits in Different Subjects Al-

lowed for Entrance by Thirty-Nine State Universities, in

17. Table XVI: Subjects Credited for Admission by Thirty-Nine

State Universities with Numbers of Institutions Accepting

each 134

18. Observations based on Table XVI 135

19. Legal Enactment and Certification 13S

CHAPTER V Evaluations and Conclusions

1. Table XVII : Data Concerning the Failures of Students Ad-

mitted to New England Colleges by Examination and Certificate 140

2. Table XVIII: Numbers of Students and Percentages of

Work Done in Five Grades of Scholarship by Freshmen, in the University of California, Coming from the State High Schools r 4i

3. Table XIX: Records of Certificated and Examined Students

in the University of Michigan 144

4. The Influence of Certification upon College Admission Re-

quirements J 46

5. Table XX: Subjects Required or Accepted by Harvard, Co-

lumbia, Yale and Princeton Universities, in 191 1 147

6. The Influence of Certification upon Methods of Teaching 148

7. Evaluations of Ten Types of Certificating Systems :

(a) The New England College Entrance Certificate

Board 15 1 x Contents

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(b) Control by State Board of Education 152

(c) The Selection of Certificating Schools by a High

School Board 156

(d) Control of Certification through State Associations

of Colleges 158

(e) The Selection of Certificating Schools through

State Universities *59

(f) Control of Certification through State Depart-

ments ! 60

(g) Joint Control of Certification through State Uni-

versities and State Departments 163

(h) Special Methods of Control by Individual Institutions x 64

(i) Control through District Commissions 165

(j) A National System Suggested 165

8. Final Conclusions l66

Bibliography I 7°

Chapter I Introduction

No student of educational administration will hesitate to admit that the system of "Admission to College by Certificate " has been, is, and will continue to be, an educational problem of the gravest practical importance. The task here undertaken will be to make an examination of the origin, development, and present status of the certificating system and to set forth such evaluations and conclusions as the data may seem to justify.

In the first place, it is proposed to show that admission to college by certificate did not have its origin in chance device, but that it was a natural and logical outgrowth of educational conditions ; and that the conditions which called into existence the new system were the results of changes in the form of educational institutions. To understand the immediate conditions which gave rise to the problem, it is necessary to trace the rise and development of state universities and state free school systems.

The significance of the problem varies greatly with the view-point taken. Examined from the standpoint of any college wanting well-prepared students and not having in mind the welfare of the secondary school, the whole question presents different aspects from those seen by institutions wanting any kind of students and not caring for the welfare of the lower schools. The first class of colleges indicated is apt to look upon the system with misgivings ; the latter class will view the plan with selfish favor. Another type of colleges accepts the graduates of the preparatory schools and makes the most of them, but disclaims any interest or responsibility in their previous training. Still another group of higher institutions looks upon the secondary schools as a part of its own system and does all in its power to assist the lower schools in their effort toward self-develop-

I ment. It is believed that the last class of higher institutions has succeeded best with the plan of admission to college by certificate.

Along with the four attitudes of colleges toward the high schools mentioned, there may be as many dispositions manifested by the schools toward the colleges. Furthermore, different types of schools will vary in their dispositions toward any one class of colleges. The best private and public schools, desiring to build up strong local institutions, will look upon the high grade indifferent college with more respect than upon a low grade selfish college which accepts any kind of students on certificate. The best schools will largely disregard the indifferent college which accepts their graduates without criticism or suggestion, but will gladly cooperate with the high grade institutions which show a genuine interest in the development of all parts of the system. The inferior secondary schools will assume a patronizing, an indifferent, an antagonistic or a cooperative disposition determined largely by the attitude of the college with which they are dealing.

The views set forth by articles and addresses on the question of certification have been based upon one or more of the different standpoints held by the different types of colleges and secondary schools suggested. In this study the standpoints of mutually sympathetic and cooperative higher and lower efficient institutions will be held in view ; for, it is believed that only under such conditions can admission to college by certificate ever become satisfactory.

The Problem

As long as the question of admission to college by certificate is looked upon merely as the formal transfer of individuals from one institution to another, and no more, just so long will the system be adjudged unsatisfactory. The adoption of the system means, usually, the transfer of responsibility for determining standards from the higher to the lower part of the system. The lower part, however willing it may be, is not prepared to bear the burden alone. The college cannot afford to shift the control of its own standards to high schools unless it is willing to assist the schools in maintaining those standards.

Introduction ?

The problem of certification, in its final analysis, becomes a question of sane, sympathetic cooperation.

From the standpoints suggested, "Admission to College by Certificate " becomes a problem which may be stated as follows :

How May the Adequate Preparation and Transfer of a Select Class from One Part of a Democratic Educational System to a Higher Part be Best Accomplished When the Welfare and Interest of Every Phase of the Entire System is Considered? The Problem May be Resolved Into the Following Factors: (i) The Highly Democratic, Differentiated and Varying Conditions and Demands of the Lower Part of the System; (2) The Responsibility of Protecting the Standards of the Schools and Colleges ; and (3) The Legitimate and Mutual Assistance and Support Which the Two Parts of the System Should Render to Each Other.

Related Studies Dr. E. C. Broome in his study of " College Admission Requirements "* gives some facts and draws certain conclusions concerning the "Accrediting System." He does not attempt to do more than raise some of the questions involved. His attitude toward the system, although some merits are admitted, is, on the whole, adverse. He concludes: "As a method for general adoption, however, the diploma system cannot be safely recommended. In the first place, there are too many weak colleges in the United States which will not turn away an applicant for admission under any considerations. Secondly, there is no homogeneity among our secondary schools. Thirdly, high-school teachers need be neither scholars nor college graduates, nor are they appointed with sufficient care." 2 The writer has no disposition to claim that the conditions as set forth do not exist. The betterment of these conditions constitutes our present and future work. Dr. Broome further states that when certain desirable changes are made, "then admission to college by diploma as a general policy will be both safe and desirable." 3 His

'A Historical and Critical Discussion of College Admission Reauirements, pp. 1 16-125.

only suggestion for the realization of the desirable changes, however, is the provision of a national board of inspectors for secondary schools. The plan suggested would place over the schools external authority, or possibly insert, between the two parts of systems, factors which would tend to keep them asunder rather than draw them together by sympathetic ties.

Part V of the Fourth Annual Report of The Carnegie Foundation for the Advancement of Teaching deals with material bearing upon the problem under consideration. It is plainly the purpose of the Foundation, however, to set forth conditions rather than to propose detailed solutions of the problems suggested. Under the heading, "Articulation of High School and College," the following sentences occur : " The effort to shape our detached educational agencies into a system, the parts of which support and demand each other, and simultaneously to bring the whole into a more fruitful relation with the problems and strivings of contemporary life, has latterly resulted in the

consciousness of maladjustment at various points

But nowhere else is there just now such marked discomfort as at the junction between high school and college. The struggle to perfect articulation at that point is perhaps the most urgent of the problems in readjustment demanded by a comprehensive educational policy.'' 4 One of the ideas here expressed, which has been kept in mind in the following study, is that the parts of the system should " support and demand each other."

No attempt is made in this introduction to summarize the articles which have been written concerning the theme of certification. Many of the utterances have been mere matters of opinion, others have been based upon conditions which no longer exist and do not seem sufficiently valuable to justify a review, while still others of real value will be referred to and accredited when used in the different parts of the study.

The most comprehensive bibliography of the literature bearing upon the question, published to date, was prepared by the late Dean Frederick W. Moore, of Vanderbilt University, and the writer, and appeared in the Proceedings of the Association of Colleges and Preparatory Schools of the Southern States,

* Fourth Ann. Rept. Carnegie Foundation for the Advancement of Teaching, p. 135.

Introduction 5

for 1910, under the title, " The Administration of the Certificating System of Admission into College." The references and the syllabus were written by Dean Moore, while the exhibits and queries were prepared by the author of this study.

Sources and Material Used

After spending almost four years in examining the literature published in general educational works, periodicals, proceedings of various associations, and the few special studies bearing upon admission to college by certificate, the conclusion was reached that while some service might be rendered by organizing the material found in the different writings, a study based upon sources would be more valuable. Many of the articles and discussions published were based upon general observation and opinion, as already suggested, without the support of records, and hence the conclusions were little more than expressions of popular belief. In this study an attempt has been made to select sources, as far as possible, of unqestionable reliability. The effort was not, at all times, absolutely successful. Educational records for the entire United States had not been published previous to 1870. That year, the Bureau of Education published its first statistical report. Such records as were in existence previous to that time were only to be found in state reports. The first statistical report of the National Bureau was compiled in a most painstaking manner. Official reports were supplemented by private correspondence.

For the historical part of this study dealing with conditions previous to the introduction of certification, the catalogues of the institutions concerned and the National report of 1870 were used.

The discussion of the evolution of the system has been based upon the records of the Governing Boards, the Minutes of Faculties, and the contents of catalogues of nine state universities covering a period of forty years. To obtain these records the writer visited each of the institutions indicated, and copied from the records all material bearing upon the question. In the main the records were satisfactory ; in some instances they were incomplete but not so much so as to interfere materially with the work.

While it is true that recorded intentions of Boards and Faculties are not always executed, they do indicate the crystallized plans of organizations and furnish some insight into their evolution. The best data for the historical part of the study seemed to be the records made by the institutions themselves rather than the writings of single individuals. This belief will explain further why the records of bodies are chosen rather than the general literature published on the question.

The data concerning present day conditions are taken from the catalogues and other publications of the institutions concerned. Their reliability is subject to the limitations incident to failure in execution, incomplete statement of actual conditions, and such errors as may occur in their interpretation. By the expression, present day conditions, is meant conditions prevailing in the United States during or at the close of the scholastic year, 1910-1911. Unless otherwise indicated, the catalogues and publications setting forth conditions for that year have been used.

No attempt has been made to cite page references to the minutes consulted for the reason that the minutes with few exceptions are unpublished; and should they be published in the future, the paging would undoubtedly be changed. All of the matter used, however, may be verified by date references and context. Much of the material has been compiled but the sources are evident and may be checked by those who may desire to do so. Since the catalogues for the scholastic year, 1910- 191 1, have been used, it has not been thought necessary to give page references to the catalogues.

Type Systems

When certain progress had been made in the investigation it became apparent that the practices by different institutions, in the different states and in different sections of the United States, could be classified under certain general types. It furthermore became evident that two fundamental factors could be used in making a type classification. These two factors comprise the methods used in selecting the accredited lists of schools and in school visitation or inspection. The list of schools may be

Introduction 7

selected by a general board, as in New England ; by a state board, as in Indiana; by the university faculty, or by combinations or modifications of these methods, as in the several states whose systems will be described. Likewise the authority for school visitation may be located with the State Department of Education, with the State University, with the State Board, with two of these, or personal visitation may be omitted entirely. These different types with their modifications will be examined and no attempt will be made to give descriptive details concerning institutions which have adopted types elsewhere explained.

Outside Aid to the System

It would be impossible to trace out all of the influences which have contributed to the development of any or all of the various types of systems. That public sentiment has grown in its favor, no one will deny. The schools and the colleges alike should be credited with whatever has been achieved. Various educational bodies such as local and national associations have also made their contributions. Many of these contributions have been in the lines of initiation and development of systems. Aside from the inspirational influences, certain movements have contributed in a material way, though indirectly, in aiding the development of the new system. The " Report of the Committee of Ten " gave assistance in the formulation of high school courses of study and helped to draw the line between college and preparatory work. The influences of the Carnegie Foundation for the Advancement of Teaching caused many institutions to raise their entrance requirements and that, at once, brought about a great agitation in the colleges and high schools. As a result, in many institutions admitting on certificate, improvements in methods were made. The General Education Board, by providing funds for the employment of inspectors of high schools in the southern states, greatly assisted in the articulation of the schools and colleges and improved the standards of admission by certificate. The influences of any one of the three movements named upon the certificating system would constitute a study in itself and no attempt will be made to give them a full evaluation in this work.

Divisions of the Study

It has seemed best to divide the study into four parts. The first of these will be given to an examination of educational conditions in the United States leading up to the origin of the certificating system; the second will deal with the development of the principles which have been woven into the different types of systems; in the third part, an effort will be made to set forth the different types of systems as they are in operation to-day; and the fourth division will be given to an evaluation of conditions with conclusions and suggestions with reference to the further improvement of the various systems now in use.

In the first part of the study it is disclosed that in early days preparatory schools and colleges were so supported, organized and conducted that admission to college by certificate was not and could not have been used to advantage. Later, when the states began to take control of education, the preparatory and collegiate work was done by one institution, but the lower and the higher parts of the work were not clearly differentiated and there was no need of a formal transfer from one part of the system to the other, and hence there was no demand for a certificating system. When the states began to develop free public high schools it seemed best to separate the preparatory from the collegiate work. Since the states were paying for the support of both the higher and lower institutions the idea of uniting them into two mutually cooperative parts of one system called for some link to bind them together. To meet this need the certificating system was originated.

The second part of the study traces, through the minutes of nine state universities, the steps taken in the evolution of different types of systems. The purpose of this chapter is to provide a background for the better understanding and interpretation of present day conditions. There is no reason why the experiences of the different states should not become the guiding principles of all. This can best happen when the regressive as well as the progressive movements are set forth in detail. With this service in view, an attempt has been made to search out the introduction of new phases in the various systems and trace them in their development through a period of forty years.

Introduction g

Chapter IV is given to a description of different systems used in the United States at the present time. The practices in the different states are discussed under certain types. An analysis of the different types is made with reference to selection of accredited lists, control and direction of school visitation, methods used in testing schools, regulations for the admission of students, treatment of students and schools failing to meet required standards, and means used in bringing about cooperation between high school teachers and college instructors.

In the last chapter an effort is made to evaluate certain factors in the different systems with a view to formulating some conclusions with reference to the results now obtained. The weaknesses as well as the advantages of the various systems are discussed, and, finally, suitable types are suggested for adaptation to different states and to the United States.

Chapter II Educational Conditions In The United States About 1870

Educational movements and educational institutions evolve from social, political, religious, and economic conditions. To understand conditions their causes must be studied. It is important not only to set forth and analyze the conditions which led to a new method of admission to college, but the causes back of them also challenge investigation and interpretation.

The historical part of this study has been divided into two divisions since the conditions which preceded the movement under consideration were far different from those which gave rise to it and accompanied its later development.

On September 20, 1870, Dr. Henry S. Frieze, Acting President of the University of Michigan, in his annual report 1 of that year, suggested mutual cooperation between the University and the high schools of the State, the visitation and examination of the schools by members of the Faculty, and the admission of students to the University by certificate. This date, so far as has been ascertained, marked the formal inception of a movement, in the United States, destined to become a nation-wide factor in educational administration.

Whether President Frieze accidentally stumbled upon a popular device for admitting students to college or whether, as a sagacious man, he merely voiced an imperative demand of new conditions, can be answered only by a careful study of the situation which called forth his suggestions.

Before taking up the more critical part of this chapter, it may be advantageous to enumerate some of the more prominent of the educational movements closely connected with the period under consideration. In 1867, in response to a memorial 2 from a convention of school superintendents, Congress provided for

1 Ann. Rept. Bd. Reg., 1869-1870; Cat. 1870-71, pp. 62, 63. 2 U. S. Com. Rept., 1870-71, Vol. 2, p. 5. IO the organization of a National Department of Education. Later this Department was changed to a Bureau and placed in the Department of Interior. In 1870, the first statistical report concerning education in the United States was published. That report has been of great service in this study. The Congressional land grant act of July 2, 1862, providing for a system of Agricultural and Mechanical Colleges, became a great factor in the organization of state school systems. A general revival of learning, following the Civil War and " reconstruction," was plainly visible in the organization of free public schools all over the United States. It was in this period that state universities showed, by original foundation, reorganization, or expansion, the most unmistakable marks of a new educational regime. As one of the significant signs of the new educational revival, on the professional side, it may be noted that the National Teachers Association, which had had a more or less precarious existence since 1857, was reorganized and rechristened the National Educational Association, and held its first regular meeting at St. Louis in 1871.

Not only in the United States but in Europe as well do we find conspicuous educational happenings falling within this period. In regard to movements in England we quote the following from Graham Balfour: "At last in 1870, in the first Ministry of Mr. Gladstone, a Government Bill for England and Wales was introduced by the Rt. Hon. W. E. Forster, and after numerous modifications was passed by both Houses of Parliament. Although considerable additions have been made, only five or six sections of the ' Elementary Education Act,' of 1870, were repealed before 1902, and it remains the basis of English public elementary education today." 3 Three fundamental principles underlying public education were first incorporated in English school law in this act: "A compulsory local rate (tax), a representative local authority and the compulsory attendance of children at school." 4 Previous to this foundation of Government schools, no school failing to provide for the reading of the Bible each day could secure aid from the Government. Under the new law, " a purely secular school might earn the

3 The Educational Systems of Great Britain and Ireland, p. 18. * Ibid., p. 21.

grant without any question." 5 School Boards might also, under certain conditions, provide for industrial schools. 6 In this same year, " a Royal Commission on Scientific Instruction was appointed, with the Seventh Duke of Devonshire as Chairman." 7 England had been working toward popular education for years but the Act of 1870 marked the first general crystallization of public educational sentiment into law.

It is germane at this point to read the following from Frederick Paulsen : " The prominent feature of the last period, beginning about 1870, was the long struggle of this new secondary school for the admittance of its pupils to the university, ending with its victory in 1901, when it was officially acknowledged as essentially equal in rank to the classical Gymnasium. In 1870 those who had passed the Leaving Examination at a Real schule I Ordnung (real school of the first order) were for the first time given access to the university, although only to the philosophical faculty, or rather only to one or two of its departments, i.e., to mathematics and natural sciences, and to modern languages." 8