Recent Development in the Utah School System

Recent Development in the Utah School System By E. J. Norton, Assistant State Superintendent of Schools

The School Situation in 1913 When the National Education Association came to Utah, in 1913, the school system of the state was noted for many splen- did accomplishments. Under the able and distinguished lead- ership of Superintendent A. C. Nelson, Utah had worked out a most fortunate solution of its rural school problem in the county unit system of organization, as well as in the provision for rural high school districts outside of consolidated county districts. On the county unit plan, seven of the most populous counties had consolidated, and some high school districts were formed in other counties, paving the way for consolidation. The principle of the state's responsibility in education was already established, and a substantial state tax for the support of the common schools was in operation. A state high school system was well worked out, supported in part from a special state tax, and supervised by a high school inspector. The maintenance of the university and the agricultural college was made more secure by the setting aside of a definite proportion of the gen- eral state tax for the current expenses of these institutions. Cities of the first and the second class from the beginning of statehood had constituted independent school districts, and had served as a pattern after which county districts were being or- ganized. The progress made in education in the state since 1913 is but a consistent building upon foundations already laid at that time. This can safely be said without in any way undervaluing the remarkable achievements of recent years.

The County Unit Plan and its Advantages The first great movement after 1913 was the making of the county unit plan mandatory in all the counties. The change was made by the legislature of 1915. This plan of organization is one of the distinctive features of the Utah system. It is essen- tially a consolidation of administration, although the actual consolidation of schools is a natural result where districts are so situated as to make consolidation practicable. Each county district is organized much like a modern city school district under the control of a district board of education. There are

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now thirty-five county school districts in the state. Twenty-four of these are coextensive with the counties and are known by the san^e names. Four counties are divided into two county districts each, and one county has three such districts. One of the most important powers of the district board of education is to appoint a superintendent of schools. The of- fice of superintendent, therefore, is practically removed from the influence of party politics, and the way is made clear for the selection of experts as superintendents. While the duties of the superintendent are not defined by law, this officer as the plan works out is the executive of the board. In most cases the district boards have adopted by-laws governing their pro- cedure and giving superintendents responsibilities and powers in keeping with the principles of modern school administra- tion. Consolidation makes for economy, efficiency, and a richer community life. Local school taxes are equal throughout the district. School opportunities, therefore, do not depend upon the relative wealth of individual communities. Material savings are made in purchasing and distributing supplies. Useless purchases are avoided, better prices are obtained, and schools are more fully supplied with things actually needed. In most districts the salaries and expenses of the five board members amount to considerably less than what was formerly paid to school trustees, and the districts can provide themselves with more adequate and efficient supervision and still realize an immediate net saving in administration expense. Many consolidated grade schools have been established in rural districts, displacing small mixed schools. In the same way rural high schools have been established. It is difficult to conceive of any other means than consolidation that would unite communities on a plan sufficiently comprehensive and permanent to insure really successful rural high schools. School terms are of uniform length throughout each district. The better supervision has resulted in a better adaptation of courses of study to local needs. Children and parents are more in- terested in school work. A larger number of children continue throughout the year, resulting in more promotions and less re- tentions in all grades. In other words, the school is made to reach a larger number of people, and is a potent force in break- ing down narrow sectionalism, and encouraging larger citizen- ship. The Utah School Program as Established in 1919 Great interest throughout the country is being shown in Utah's program for extending public education. This program is comprised in the school laws passed by the state legislature

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in 1919. The laws of most importance pertain to health educa- tion, compulsory attendance, part-time schools, Americanization, year-round supervision, and a proposed constitutional amend- ment permitting a larger state school fund. The law establishes in the state department a division of health education. It authorizes the appointment of a state di- rector, who has general supervisory control of health education in the state. Local boards have power to provide for health education, not only of school children but of parents and of children of pre-school age. In order that standards may be ex- acted, a state appropriation is made with which to subsidize the work. A special supplement to the Utah course of study on health education has been issued. Teachers are instructed how to inspect their pupils and detect beginning symptoms of acute health disorders, as well as indications of physical de- fects and under-nourishment. Remarkable progress in health education has already been made. Reports show that during the present year most of the school children of the state have had physical examinations, the majority of them medical ex- aminations, and many have had professional treatment for re- mediable defects. The new state law on compulsory attendance requires that children attend school up to the age of 18, unless they are le- gally excused to enter employment or for other specific causes. These other causes are: (1) that they had already completed a high school course; (2) that they are taught at home the required number of hours; (3) that they are not in a physical or mental condition to attend school; and (4) that no school is maintained within two and one-half miles of their place of resi- dence and free transportation is not provided. Those who are excused to enter employment are required by law to at- tend a part-time school for at least 144 hours each year, provid- ing such a school is maintained for them. This far-reaching law gives local boards of education the authority to require that all young people of school age in a district be either in school or properly employed out of school. While the law has resulted in the establishment of part-time schools in practically all of the large centers and short dull season courses in many of the rural districts, the principal effect has been to increase the attendance in regular high schools. The high school en- rollment for the year just closed is about forty per cent above the preceding year.

Americanization of Foreigners For the Americanization of foreigners the 1919 laws au- thorize the state board of education to appoint a director of Americanization and require that all alien persons in the state

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between the ages of sixteen and forty-five years who cannot speak, read, and write English with the ability expected in fifth gra^e pupils, must attend Americanization classes at least two hundred hours during each school year. In these classes instruction is given in English, in the fundamental principles of the Constitution of the United States, in American history, and in such other subjects bearing upon Americanization as may be determined. This law has been the means of bringing vividly before the people of the state the Americanization prob- lem and has stimulated the work of Americanization to a marked degree. Year-round Supervision

Aspecial feature of the Utah laws is specific authorization for year-round supervision. The state board for vocational education and local boards of education are given authority to organize for supervising the activities of school children throughout the year, with special attention during the summer months to community life. Under this authorization a number of local boards have already employed supervisors for the summer months to encourage and advise young people in their home and community activities. In this work special effort is made to co-operate with Boy Scout and Camp Fire Girl leaders and with all other organizations promoting wholesome community life among young people. The Question of Funds With this unusual school program upon the statutes, Utah gives promise of great educational progress, if the necessary funds can be provided. While special state subsidy is available for most of these new lines of work, the amount is inadequate and the system of financial support is not yet on the right basis. For a number of years Utah has been working along a definite policy to form larger local taxing units and a larger state fund in order to equalize the burden of school taxes and thus give all children in the state a more nearly equal opportunity. Much progress to this end has been made in the rural school consolidation already explained, but still there is great inequality in the per capita assessed valuation in the various county districts. In order to improve this con- dition, it is necessary to have a larger state tax and a resulting larger per capita distribution of state funds among the dis- tricts. This can not be done at present, because of a consti- tutional limitation to the state school tax. The 1919 legislalure, therefore, proposed an amendment to the constitution, which will permit a state tax high enough to give from the state school fund to the local districts twenty-five dollars for each person of

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school age. This amount, the legislature thought, would ap- proximate what is required to pay the salaries of teachers and would thus enable the state to take over practically the respon- sibility furnishing teachers in the schools, leaving local of provide buildings and ordinary maintenance. The districts to amendment will be voted upon in the general election in No- vember, 1920. Sentiment at present seems favorable to its adoption. Such, a result is necessary for the complete realiza- tion of what the Utah program contemplates.