Such a program does not call for individual instruction to any considerable extent; it does call for the grouping of pupils into schools and classes in accordance with similarity of needs.

Seven factors must be considered in determining adequate grouping of pupils for instruction: Maturity, most readily but only roughly indicated by age; knowledge and ability to learn and to do; probable time to be devoted to schooling; natural capacity and interest; command of the English language; marked defects, abnormalities and subnormalities, physical and mental; and sex.

The significance of age: Children under 6 are educable, and suitable provision should be made for them; children of a greater age range than 3 or 4 years can not be advantageously instructed in classes together (and) 10 per cent of the pupils in the elementary grades in Portland need reclassification on account of age alone; "over-age" is the resultant of one or more of a large number of diverse causes; all over-age pupils should be studied and suitable treatment applied; it is still more important to anticipate and prevent the development of over age pupils.

As all public instruction should be designed to fit the recipient of it for largest usefulness, the time available for such instruction must be an important factor in determining what that instruction shall be.

Ignorance of the English language is a handicap that calls for separate classification and special instruction.

Markedly abnormal and subnormal children should be segregated, both in their own interest and in the interest of normal children.

The school population falls into four large fairly distinct groups, best represented under the names of the types of education best suited to the respective group needs: The kindergarten group; the elementary group; the intermediate group; and the secondary group.

Courses of study must change constantly to meet the ever-changing needs of pupils and to fit for the ever-varying service that society demands.

Promotion must be based not on what a pupil has learned but on what he needs to learn.

In vocational and practical education arts the following changes are recommended:

Primary manual arts should be introduced into the first, second, and third grades, and the work in manual training in the upper grades made much less formal. Cooking should be introduced in the sixth, not later than the seventh, grade. The elementary course in sewing should be modified to include more garment making and less exercise work.

The work in music and the training of the powers of expression need much amplification.

The board of school directors should assume full financial and educational responsibility for school gardening and place the work under an efficient supervisor, with sufficient help to carry it out.

Five or more intermediate schools should be organized to cover the seventh, eighth, and ninth grade work.

If the intermediate school plan is not adopted, freehand drawing in the seventh and eighth grades should specialize, to meet the needs of girls, in costume designing, home decorating and furnishing, pottery, and leather and metal work; and mechanical drawing should be offered to boys. The drawing in the high schools needs redirection and additional facilities for work.

Vocational work for girls should receive a much greater expenditure of time, thought, and money than it now does.

A vocational-guidance director should be appointed.

The commercial courses in the high schools need reorganizing and in particular need to be much more closely connected with the business life of the city.

There should be a first-class agricultural high school, well provided for practical instruction.

The Portland School of Trades should be merged into a technical high school, retaining the trade courses.

The needed reorganizations and expansions of the school system are specified as follows:

1. That the school system be reorganized, to secure greater educational efficiency, into the following units: Kindergarten, one year; elementary schools, six years; intermediate schools, three years; and high schools, five years (three or four years now; five ultimately). This can be made a truly American system, fitted to meet the social, professional, industrial, and commercial needs of American boys and girls.

2. That ungraded rooms should be established in connection with each elementary school of any size, to afford the necessary provision for the exceptional children in the school.

3. Four or five special or truant schools for boys, irregular in their studies, habits, and deportment, should be established, graduating their boys into a central special manual school, from which they should be admitted to one of the high schools.

4. The vacation-school system should be gradually enlarged and extended, and changed somewhat in type. The playgrounds should be closely connected with such school work.

5. The night-school work should be enlarged, enriched, and materially extended in scope, and its purpose in part changed.

6. The school day should be extended, and Saturday forenoon included for vocational work in grammar schools, carrying the seventh and eighth grades, and in the intermediate schools and in the high schools.

7. Two special art schools, one for intermediate and one for high-school pupils, should be established.

8. There should be established at least two, and gradually a number more, of neighborhood schools, to meet the peculiar needs of certain centers within the city.

9. A school for the instruction of janitors should be added, standards for the work established, and a wage scale based on efficiency established.

Medical inspection should be placed under the supervision of a full-time physician as chief director, aided by two full-time and two half-time physicians, one full-time dentist, and seven additional full-time nurses. Annual tests of vision and hearing should be made. Playgrounds should be increased in number and size, and a few open-air schools should be established at once. Mentally peculiar and defective children should be studied by psychologists. The more important aspects of the hygiene of instruction should receive attention.

MINNEAPOLIS, MINN.

Because of its specific recommendations which in part suggest a reorganization of the schools, mention should be made of "A vocational survey of Minneapolis" which was published in 1913 by the Minneapolis Teachers' Club. The commission of 18 "persons well known in the city, and representatives of differing interests," eventually depended upon the Minneapolis Teachers' Club and the board of directors of Unity House for the completion of the inquiry. The completeness and accuracy of the report are regarded as due to the work of Misses Lydia Herrick and Emily Child.

The report (90 pages) includes 13 tables and other statistical material presenting school and industrial data concerning a group of 352 children between the ages of 14 and 16 years who left school in 1907 or 1908.

The recommendations were as follows:

1. That as rapidly as would be economical the schools be organized on the "sixthree-and-three" plan, beginning differentiated courses in the B7 grade. These courses should follow three broad lines leading: (1) Toward the academic courses in high schools; (2) toward the commercial courses or directly to business; and (3) toward manual training in high school, or directly to manufacturing and mechanical pursuits. 2. That preparation for the trades can be best and most economically given in continuation schools, in which the instruction shall be closely related to working conditions, while the necessary skill shall be gained in actual work under the usual commercial conditions.

3. That the membership of the Thomas Arnold School be enlarged to include all boys who have reached the age of 15 and have not yet reached the seventh grade. And that a similar school be organized for girls.

4. That a department of vocational guidance be organized. It should attempt the following work: First, a survey of the business and industries of the city, giving accurate and complete information regarding the wages, hours of labor, chances of promotion, sanitation, and moral conditions of each occupation. Second, a survey to indicate clearly the value of the present courses of instruction in high school, not only the industrial and commercial courses, but every course in our schools; in this should be included a comparison with the product of business colleges and other schools, and the opinions of employers regarding the qualifications of the young persons in their employ. Third, vocational guidance, which shall assist a child with his parent to find his proper place at work; establish a bureau of information for employers and those seeking employment; at its discretion, within the law, issue all labor permits and have general oversight of the boys and girls at work.

5. That a set of records be kept of each pupil, giving a complete account of his home conditions, his physical condition, and his mental and emotional characteristics, upon which information may be based a judgment concerning his future occupation.

6. That as an adjunct to the board of education an advisory commission of 15 members, composed of employees, employers, and educators be established, whose duty it shall be to report changes in the demands of business and industry, and to advise modifications of the course of study to meet these new demands.

7. That a law should be enacted, making it mandatory that a boy shall be either in school or at work up to his eighteenth year, and that the department of vocational guidance be charged with the duty of enforcing such a provision.

8. That a school census be taken of the city, the purpose being that all children of school age shall be in school, and that the board of education may have the benefit of this information in planning for the future of the city's school system.

9. That an age-grade census of all pupils in school be taken, to determine where retardation is taking place; this should be followed by a study of conditions in order to remove the causes of retardation.

STATE OF OHIO.

The most extensive school survey conducted on the cooperative plan is that which was reported in January, 1914, to the governor of Ohio by the Ohio State school survey commission. On February

26, 1913, the General Assembly of Ohio passed an act authorizing

the governor

to appoint a commission of three members to make a survey of the public schools, the normal schools, and the agricultural schools of the State, and the State administration of the same, to determine with what efficiency they are being conducted, and to report to the governor with recommendations. Such report shall be transmitted by the governor to the present General Assembly of Ohio.

An appropriation of $10,000 was made to meet the necessary expenses of the members of this unpaid commission which included M. Edith Campbell, William L. Allendorf, and Oliver J. Thatcher, chairman. The commission secured (without cost to the State) Horace L. Brittain, of the New York training school for public service of the Municipal Research Bureau, as director of the survey. The commission began its work March 12, 1913, and presented its report the following January.

The extent of the cooperation in the survey is indicated by the fact that

An intensive study of 659 rural village schools in 88 counties and an extensive study of 9,000 schoolrooms in 395 school systems [were] participated in by 44 professors in professional schools for the training of teachers and 116 students in these institutions, most of whom had had experience in rural tchool teaching, 395 superintendents of schools, and other school men and women, and 9,000 teachers who supplied information to the commission.

In addition many persons

participated in conferences and round-table discussions in which the constructive suggestions of the commission were submitted to close criticism.

The cooperative character of the enterprise is still further indicated by the 12 forms used in the field survey of schools and a number of questionnaires sent to individuals, such as auditors, superintendents of schools, and teachers at teachers' institutes. (Appendix B, pp. 306-352.)

The topics included in the survey as presented in the report (352 pp.) and treated in the 22 chapters, most of which close with "constructive suggestions," were as follows:

Administration of the office of State superintendent; school supervision; certification of teachers; the academic training, experience, and tenure of office of teachers now in service; the professional training of teachers; classroom instruction; equipment of elementary schools; the physical plant; the care of the health of pupils; records and reports; slow progress, over-age, and nonpromotion; township, village, and special district high schools; living conditions of teacher; outside cooperation with rural schools; general community conditions; local administration of school law; special and village districts compared with township districts from which they are cut; rural boards of education; consolidation and centralization of schools; State aid to common schools; and standardization of schools rather than of pupils and students.

The report concludes with the following résumé:

The work of the office of the State superintendent of public instruction is hampered by lack of room, necessary equipment, and adequate inspectorial and clerical force. The superintendent himself is forced to devote a large part of his time to office detail.

The department should be provided at once with more space (it now has but three rooms, two of these very small), more equipment for filing and preserving records, and more office force, so that the State superintendent of public instruction can devote his time to larger matters of policy.

Many rural districts and some village districts are inadequately supervised.

A system of State-wide and as nearly as possible full-time supervision should be inaugurated, providing for combined county and district supervision applying to all school districts outside the cities.

The present method of certifying teachers is too cumbersome and puts a premium on ability to pass written examinations.

Many grades of certificates should be abolished and every candidate for teacher's license should be required to pass a classroom test.

Large numbers of teachers in rural, village, and small city districts have no professional training and even no academic training above the high school.

A State-aided system of teacher training in connection with first-grade high schools in rural and village districts should be established. Summer schools for teachers should be standardized and increased in number. Teachers' institutes, wherever retained, should be reorganized and strengthened.

Much good instruction was observed in all grades of schools, but in many and widely separated districts the need of careful supervision was very evident.

Many schools were deficient in necessary academic and hygienic equipment. This was not always due to lack of funds, as neighboring districts of similar financial standing often differed widely as to amount and character of equipment.

Many schools, particularly rural schools, are in insanitary condition. In many cases privies, especially in some township districts, are in a disgraceful condition. Ideal condition as to cleanliness in one district may exist side by side with exactly opposite conditions in a neighboring district.

All schools should be compelled to come up to a decent standard of cleanliness and academic and hygienic equipment.

Good examples of ventilation, heating, and lighting are found in all grades of schools, but undesirable conditions are widspread.

The salaries of teachers are inadequate in many schools, particularly in rural districts. Other living conditions are often not of a nature to tend toward length of service in the profession.

Outside cooperation with public schools is comparatively rare and except in the cities, the social use of buildings is infrequent, although there are some outstanding examples of social center work in rural communities.

A widespread revival of the use of school buildings as community meeting places is demanded in the interest of the social life of rural communities. Such a revival would go far toward, on the one hand solving the problem of retaining good teachers in rural districts, and on the other increasing the interest of patrons of rural schools. Many rural boards of education are breaking school laws by non-enforcement of the compulsory-attendance law, by refusing to pay teachers for janitor service and attendance at institutes, and by maintaining school for less than 32 weeks per year.

Boards of education should be compelled to obey all State laws on pain of nonparticipation in State funds.

Too many exceedingly small schools are maintained in the State. Such schools are always expensive and in the main inefficient.