Chapter XXI: Part III: Elementary Education. (1) Powers and duties. School boards (1)

and school attendance committees are abolished and their powers and
duties are transferred to the L.E.A., who are also to be responsible
for and have the control of all secular instruction in public
elementary schools not provided by them (S 5).

(2) Management of schools. (a) For public elementary schools provided
by the L.E.A. (now officially styled "council schools"): (1) in
counties, there is to be a body of six managers, viz. four appointed
by the county council and two by the borough or urban district
council, or parish council or parish meeting as the case may be,
called in the act the minor local authority; (2) in non-county areas,
the L.E.A. (being the borough or urban district council) may, if they
think fit, appoint a body of managers consisting of such number as
they may determine (S 6 [1]).

(b) For schools not provided by the L.E.A. (voluntary schools) the act
directs that there shall be a body of six managers, of whom four are
to be "foundation managers," and two are to be appointed as follows:
in counties, one by the L.E.A. and one by the minor local authority,
and in autonomous boroughs or urban districts both by the borough or
urban district council (S 6 [2]). Directions for the appointment of
foundation managers are given by S 11, which in effect declares that,
unless the trust deed of the school provides for the appointment of
the required number, the foundation managers must be appointed under
an order of the Board of Education, in making which the board are to
have regard to the ownership of the school building and to the
principles on which the education given in the school had been
conducted in the past. It was found necessary for the board to make
over 11,000 of these orders, a heavy task which was rendered the more
formidable by the controversial character of the questions arising
upon trust deeds as to the mode of appointment and the qualifications
of managers.

(3) Maintenance of schools (S 7). (a) Powers. The L.E.A. are required
to maintain and keep efficient all public elementary schools which
were necessary (i.e. which, as defined by S 9, have an average
attendance of not less than thirty), under certain specified
conditions, of which the most material are as follows. The managers
must carry out the directions of the L.E.A. as to the secular
instruction to be given in the school, including any directions with
respect to the number and educational qualifications of the teachers,
and for the dismissal of any teacher on educational grounds (S 7 [1]
[a]). The consent of the L.E.A. is required to the appointment of
teachers, but that consent may not be withheld except on educational
grounds; and the consent of the authority is also required to the
dismissal of a teacher unless the dismissal is on grounds connected
with the giving of religious instruction (S7 [1] [c]).

(b) Liabilities. The managers are required to provide the school
premises to the L.E.A. for use as a public elementary school free of
charge, except that a rent is payable for the teacher's residence
where one exists; and the managers are further required out of funds
provided by them to keep the school premises in good repair and to
make such alterations and improvements in the buildings as might
reasonably be required by the L.E.A. On the other hand, the L.E.A. are
required to make good such damage as they consider to be due to fair
wear and tear of rooms used by them (S 7 [1] [d]). Thus, by virtue of
the teacher's house rent and the wear-and-tear allowance the voluntary
managers secured a valuable set-off against the cost of ordinary
repairs.

Any question arising under this section (S 7) between the L.E.A. and
the managers of a voluntary school is to be determined by the Board of
Education (S 7 [3]).

It is further provided with respect to teachers in voluntary schools
that assistant teachers and pupil teachers may be appointed "if it is
thought fit" without reference to religious creed and denomination,
and in any case in which there are more candidates for the post of
pupil teacher than there are places to be filled, the appointment is
to be made by the L.E.A. (S 7. [5]).

A provision, S 7 (6), known from the name of its author (d. 1908),
Colonel Kenyon Slaney, M.P., as the Kenyon-Slaney clause, attracted
considerable attention and formed the subject of much ecclesiastical
controversy during the passage of the bill through parliament. The
Kenyon-Slaney clause requires the religious instruction in voluntary
schools to be in accordance with the provisions (if any) of the trust
deed, but also to be under the control of the managers as a whole,
whereas the common form of trust deed of the National Society reserves
the control of religious instruction to the clergyman, whilst the
clause was equally in conflict with the well-known sacerdotal
principles of the Roman Catholic Church. Thus the clause represented a
revival, as did the questions with respect to foundation managers, of
the early controversy over the management clauses of the Committee of
Council on Education. Its special interest lies, not so much in its
intrinsic importance, as in the precedent it affords, specially
notable as emanating from a Conservative source, for the overruling of
trust deeds upon grounds of public policy. By way of saving another
familiar provision of the trust deeds, a proviso to the Kenyon-Slaney
clause reserves the existing trust-deed rights of appeal to the bishop
or other denominational authority as to the character of the religious
instruction.

_Provision of New Schools._--New schools may be provided either by the
L.E.A. or any other persons, subject to the issue of three months'
public notice, and to a right of appeal on the part of the managers of
any existing school, the L.E.A. (in the case of proposed voluntary
schools) or any ten ratepayers of the district, to the Board of
Education on the ground that the proposed school is not required, or
that a school provided by the L.E.A., or not so provided, as the case
might be, is better suited to meet the wants of the district than the
proposed school. Any enlargement of a public elementary school which
in the opinion of the Board of Education is such as to amount to the
provision of a new school is to be so treated for the purposes of the
section, and any transfer of a school to or from the L.E.A. must be
treated as the provision of a new school. In deciding appeals as to
new schools and in determining a case of dispute whether a school was
necessary or not, the board are directed to have regard to the
interest of secular instruction, the wishes of parents as to the
education of children, and the economy of the rates, but existing
schools are not to be considered unnecessary if the average attendance
is not less than thirty (SS 8-9). The last-mentioned canons have
played a prominent part in subsequent discussions. Experience of these
sections has shown that though it is extremely difficult to set up new
voluntary schools in face of opposition from the L.E.A., such
opposition is rarely offered or pressed where any really strong local
demand is shown to exist.

_Aid Grant._--Section 10 provides a new aid grant payable to the
L.E.A. in respect of the number of scholars in average attendance in
schools maintained by them. This new grant, calculated by an elaborate
method which need not here be set out, took the place of the grants
under the Voluntary Schools Act 1897, and S 97 of the act of 1870 as
amended by the Elementary Education Act 1897.

_Education Committees._--The constitution of education committees is
dealt with by S 17. All councils having powers under the act, except
those having concurrent powers as to higher education only, must
establish education committees in accordance with schemes made by the
councils and approved by the Board of Education (S 17 [1]). A scheme
may provide for more than one education committee under a single
council, but before approving such a scheme the board must satisfy
themselves that due regard is paid to the importance of the general
co-ordination of all forms of education (S 17 [6]). All matters
relating to the exercise by a council of their powers under the act,
except the power of raising a rate or borrowing money, stand referred
to the education committee; the council may also delegate to the
education committee any of their powers other than financial powers as
above (S 17 [2]). Every scheme must provide (a) for the appointment of
a majority of the committee by the council, the persons so appointed
to be persons who are members of the council unless in the case of a
county the council otherwise determine; (b) for the appointment by the
council, on the nomination or recommendation, where it appears
desirable, of other bodies (including associations of voluntary
schools) of persons of experience in education, and of persons
acquainted with the needs of the various kinds of schools in the area
of the council; (c) for the inclusion of women. Provision was also
made (d) for the representation in the first instance of members of
existing school boards (S 17 [3]).

_Expenses._--All parliamentary grants are made payable to the L.E.A.
instead of as previously to the managers (S 18 [2]). The county
council must charge a proportion of all capital expenditure and
liabilities, including rent, on account of the provision or
improvement of any public elementary school on the parish or parishes
which in the opinion of the council are served by the school, such
proportion to be not less than one-half or more than three-fourths as
the council think fit (S 18 [1] [c] [d]). The county council may also
if they think fit charge on the parishes benefited any expenses
incurred with respect to education other than elementary (S 18 [1]
[a]).

_Endowments._--The act introduced a new principle into the
administration of endowments by directing that their income so far as
necessarily applicable in any case for those purposes of a public
elementary school for which the local authority are liable must be
paid to that authority for the relief of the parochial rate (S 13). As
the result of technicalities of legal interpretation the section has
been found to have in practice a narrower scope than had been
generally anticipated.

The act of 1902 was extended to London by a separate act in 1903,
containing certain special provisions of only minor importance.

"Passive resistance" to 1902 act. Default Act 1904.

The hostility of Nonconformists to the extension of rate-aid to denominational schools led to the organization upon a considerable scale of what became known as the "Passive Resistance" movement, a number of Nonconformist rate-payers refusing to pay the education rate on the ground that their consciences forbade their supporting the religious teaching in denominational schools; and their willingness to become subject to distraint and consequent inconveniences rather than pay the rates became the foundation of a widespread political campaign. In Wales, where in the rural districts the schools were commonly Anglican whilst the population was Nonconformist, particular difficulties arose in administering the act in consequence of the hostile attitude of the county authorities. Friction likewise manifested itself in one or two English areas, which reflected militant Nonconformist views. Accordingly the government passed the Local Education (Local Authority Default) Act 1904, empowering the Board of Education, in the case of default by the local authority, to make payments direct to the managers of the school and to deduct the amount from the sums payable to the defaulting authority on account of parliamentary grants.

Bill of 1906.

When the liberal party came into power again in 1906, Mr Birrell as president of the Board of Education in Sir Henry Campbell-Bannerman's administration introduced a bill to amend the Education Acts 1902-1903, with the object of securing full public control of all rate-aided schools and the appointment of teachers without reference to religious belief. The bill was of a highly complex character; its principal features were,--compulsory transfer of existing voluntary schools to the local authority, facilities for the giving of denominational instruction in transferred schools out of school hours by persons other than the regular teachers, and the recognition in populous districts, upon the demand of parents, of special publicly maintained schools in which denominational teaching could be included in the curriculum; the latter schools might (according to the bill as finally amended) in the last resort, i.e. if the local authority refused to maintain them, be recognized as state-aided schools. The bill encountered strong opposition from Anglicans and Catholics (though the Catholic Irish members finally voted for it as amended); it passed the House of Commons by a large majority, but after unavailing attempts at compromise upon the amendments introduced in the House of Lords, the two Houses failed to agree and the measure was lost.

Bills of 1908.

Mr Birrell was soon transferred to another office, and nothing more was done to amend the act of 1902 till early in the session of 1908, his successor Mr McKenna introduced a bill based on what was known as "contracting out." In single-school parishes the existing schools were to be compulsorily transferred, subject to the grant of denominational facilities out of school hours; elsewhere a sufficiency of places in schools with Cowper-Temple teaching, which the bill proposed to make compulsory in all provided schools, must be supplied by the local authority, while existing voluntary schools might become state-aided schools upon terms of receiving a grant of 47s. per head. The bill was accompanied by a financial scheme for a new system of allocating the parliamentary grant. In view of the improbability of its passing into law the bill was not pressed beyond the stage of second reading. Meanwhile, when Mr Asquith reorganized the cabinet, Mr Runciman succeeded Mr McKenna at the education office, and in the autumn he introduced a fresh measure framed as the result of negotiations between the government and the archbishop of Canterbury (Dr Randall Davidson) and designed to be passed rapidly through parliament by consent of all parties. Mr Runciman's bill, like his predecessor's, was based upon the principle of compulsory transfer in single-school parishes and contracting out elsewhere, but it gave a right of entry for denominational teaching on two days a week during school hours in all council schools whether transferred voluntary schools or otherwise, with liberty to employ for this purpose assistant teachers, but not (save temporarily at first in transferred schools) head teachers. Provision was also made for the payment of a small rent which would be applicable for or towards the cost of the denominational instruction. Unfortunately, the compromise failed at the last moment for want of agreement as to the financial terms of "contracting out," the government offering 50s. per head and the Church demanding 7s. more. It is obvious that "contracting out" is open to serious objection upon educational and economic grounds, and that if resorted to upon any very considerable scale it would involve a disruption of the public elementary system, and a duplication of schools which would constitute a wasteful drain upon the national exchequer. Upon such a system, therefore, some check is necessary, and, once decided that the check should take the form of financial pressure, rather than request of parents as in Mr Birrell's bill, or some form of administrative control, the question of pecuniary terms became one of principle and not merely of financial detail. Moreover, the difficulty of adjusting differences was intensified by the opposition of the extremists on either side, which daily gathered force, and the bill was withdrawn by the government when in committee of the House of Commons. The conciliatory efforts of Mr Runciman and Dr Randall Davidson revealed the existence of a considerable body of influential opinion among all schools of thought in favour of a national compromise, and the proposals embodied in the bill marked on the part both of Churchmen and Nonconformists important concessions to each other's views, engendering reasonable hopes of an ultimate settlement being reached at no distant date.

Feeding of school children.

Two subsidiary points as regards educational machinery have to be noted. The Education (Provision of Meals) Act 1906 enabled local education authorities to aid voluntary agencies in the provision of meals for children attending public elementary schools, and in certain cases with the consent of the Board of Education to defray the cost of the food themselves. In 1907-1908 forty, and in 1908-1909 seventy-five authorities in England and Wales were authorized by the board to expend moneys from the rates on food under this act. In addition, a number of authorities expended funds on equipment and service.

Medical inspection.

In 1907 an uncontroversial act entitled the Education (Administrative Provisions) Act, besides dealing with various matters of technical and administrative detail, laid upon local education authorities the new duty of providing for the medical inspection of all children attending public elementary schools. In connexion with this act the Board of Education established a medical department to advise and assist them in supervising local education authorities in carrying out their statutory duties in this regard. The whole departure is significant of the new sense of the importance of physical culture and hygiene which has been one of the remarkable features in recent educational developments.

General progress in elementary education.

Sir Joshua Fitch, in his article on education in the 10th edition of this work, describes how experience had led the Education Department to abandon the system of payment by results, to establish "in place of testing the proficiency of individual scholars,... one summary estimate of the work of the school; in place of an annual examination, occasional inspection without notice; in place of a variable grant dependent on a report in detail on the several subjects of instruction and on particular educational merits and defects, one block grant payable to all schools alike." He at the same time expressed some misgiving as to the effect of "so large a relaxation of the conditions by which it had hitherto been sought to secure accuracy and thoroughness in teaching." The act of 1902, by placing secular education in public elementary schools under the control of strongly organized local education authorities may be said to have largely removed such dangers as were to be apprehended from the relaxation in question. Thus it was possible for the Board of Education in the code of 1904 to abolish the last traces of the system of payment by results, by setting forth (in the language of their report for 1903-1904) "a properly co-ordinated curriculum suitable to the needs of the children, with an indication of the relation which the various subjects of instruction should bear to each other, in place of the relatively haphazard list of possible branches of knowledge which were formerly presented to the choice of individual schools or authorities." In the new code also the board for the first time endeavoured to state for the guidance of teachers and parents the proper aim of the public elementary school, laying stress upon that element of the training of character which the system of payment by results had so unfortunately obscured. The new spirit was strikingly manifested in the volume of _Suggestions for the Considerations of Teachers_, issued by the Board of Education in 1905. This volume represented a notable attempt to connect administration with educational theory, without in any way seeking to crush individual initiative, or to impose a bureaucratic uniformity of method upon those engaged in the actual work of the schools. Apprehension of the true aim of elementary education as essentially and primarily a preparation for practical life has led to a corresponding development of instruction of a practical character, observation lessons and nature study being treated as a necessary element in the curriculum, while handicraft and gardening, and domestic subjects (for girls), are encouraged by special grants. Particular attention has been bestowed both by the central and local authorities upon the problem of rural instruction, and much has been done in many areas to bring the schools into closer relations with the needs of agricultural and rural life generally. In this way the old and perhaps not altogether ill-founded distrust of popular education as tending to unfit the working classes for industrial pursuits is being broken down and a public opinion more favourable to educational progress in the widest sense is being created.

According to the official returns for 1907-1908, the total number of scholars on the registers (England only) was as follows:--council schools, 2,991,741; voluntary schools, 2,566,030; total, 5,557,771, and the total attendance upon which grant was paid was 4,928,659. The percentage of actual average attendance to average number on the registers was 88.50%. The parliamentary grant (England and Wales) for elementary schools, other than higher elementary, amounted to L11,023,433.

Higher elementary schools.

The development of higher elementary education in England is now proceeding very much upon the lines that have been noted in France. The old higher-grade board-schools (declared illegal under the Elementary Education Acts by the judgment in the case of _Rex_ v. _Cockerton_ in 1901, and legalized temporarily by an act passed for the purpose in the same year) were mostly converted into municipal secondary schools under the act of 1902. In the succeeding years provision was made in the code for higher elementary schools of a specialized and technical type intended only for industrial districts. In 1906, as the result of the recommendations of the Consultative Committee, a new type of higher elementary school was admitted for children over twelve, corresponding generally to the French _ecole primaire superieure_, described as having "for its object the development of the education given in the ordinary public elementary school, and the provision of special instruction bearing on the future occupations of the scholars, whether boys or girls." It may be possible to supplement this system in the rural areas to some extent by "higher tops" to the ordinary elementary schools in cases where it is not practicable to establish a fully organised higher elementary school; but for such "higher tops" no central grant is available. The total number of scholars upon the registers of higher elementary schools (England) in 1907-1908 was: New Type, 3178 (against 2715 in the previous year); Old Type, 4492 (against 5866 in the previous year).

Expenditure on elementary education.

The total expenditure (exclusive of capital outlay) of the local authorities (1906-1907) in England only upon elementary education, including "industrial" and "special" schools, was L19,776,733, of which (a) L10,408,242 was met by the ordinary parliamentary grant, and (b) L8,930,468 was the balance required to be met by rates, the difference being represented by receipts from various sources. The average cost per child of elementary schools in England and Wales (excluding London) may be taken at L3 (including London L3, 4s. 10d.), and the average central grant (excluding grants for special purposes) at 41s., leaving 19s. to be raised locally.

Preliminary training of elementary teachers.

The training of teachers for the two great branches of public education, elementary and secondary respectively, is an important part of the general administrative problem. Since the middle of the 19th century there has been a great development of public opinion with regard to their professional qualifications. Sir Joshua Fitch (_Ency. Brit._ 10th ed.) pointed out that the full appreciation of the importance of training began at the lower end of the social scale. Shuttleworth and Tufnell in 1846 urged the necessity of special training for the primary teacher, and hoped to establish State Training Colleges to supply this want; but the one college at Battersea which was founded as an experiment was soon transferred to the National Society (the "National Society for educating the poor in the principles of the Established Church": founded in 1811). Before this, Bell and Lancaster had made arrangements in their model schools for the reception of a few young people to learn the system by practice. In Glasgow, David Stow, who founded in 1826 the Normal Seminary which afterwards became the Free Church College, was one of the first to insist on the need of systematic professional preparation. The religious bodies in England, notably the Established Church, availed themselves promptly of the failure of the central government, and a number of diocesan colleges for men, and separately for women, were gradually established. In 1854 the British and Foreign School Society (founded 1808) placed their institutes at the Borough Road and Stockwell on a collegiate footing, and subsequently founded other colleges at Swansea, Bangor, Darlington and Saffron Walden; the Roman Catholic Church provided two for women and one for men; and the Wesleyans two, one for each sex. The new provincial colleges of university rank were invited by the Education Department to attach normal classes to their ordinary course and to make provision for special training and suitable practice in schools for those students who desired to become teachers. Thus the government came to recognize two kinds of training schools--the residential colleges of the old type and the day colleges attached to institutions of university rank; both were subsidized by grants from the Treasury, and regularly inspected. As the need of special training for teachers became further recognized by the consideration of the same question as regards teachers in higher and intermediate schools (Cambridge instituting in 1879 examinations for a teacher's diploma, and other universities providing courses for secondary as well as primary teachers, and establishing professorships of education), the attitude of the government, i.e. the Board of Education, towards the problem gradually became more and more a subject of controversy and of public interest, as indicated by the clause in the Act of 1899 providing for a public registration of qualified teachers and for the gradual elimination from the profession of those who were unqualified. And meanwhile the increased solidarity of the National Union of Teachers (founded in 1870), the trade union, so to speak, of the teachers, brought an important body of professional opinion to bear on the discussion of their own interests.

The question of the preliminary education of elementary teachers had after some years of discussion reached a critical stage in 1909. The history of pupil teachership as a method of concurrent instruction and employment shows that it was in its inception something in the nature of a makeshift; the ideal placed before local education authorities in the recent regulations and reports of the Board of Education is the alternative system whereby with the aid of national bursaries (instituted in 1907) "the general education of future teachers may be continued in secondary schools until the age of seventeen or eighteen, and all attempts to obtain a practical experience of elementary school work may be deferred until the training college is entered, or at least until an examination making a natural break in that general education and qualifying for an admission to a training college has been passed." Under the revised pupil-teacher system established by the regulations of 1903 provision is made for the instruction of pupil teachers in centres which as far as possible are attached to secondary schools receiving grants from the Board of Education under the regulations for secondary schools, about two-thirds of the secondary schools on the grant list undertaking this work. Accordingly, the result of recent changes is to modify the old system in two ways: first by providing the alternative of a full course of secondary education, secondly by associating pupil teachership itself as far as possible with part-time attendance at a secondary school. The total number of pupil teachers recognized during the year 1907-1908 was 20,571, and of these 9770 were in centres forming integral parts of secondary schools. The number of bursars who passed the leaving examination was 1486.

Training colleges.

One of the principal difficulties which confronted the state and the local authorities in their task of organizing an improved system of public education under the act of 1902 lay in the deficiency of training colleges in view of the increased number of teachers. Local authorities naturally hesitated to burden themselves with the cost of providing such institutions in view of the fact that there is nothing to prevent teachers trained at great expense by one authority taking service under a less public-spirited authority who had contributed nothing to such training; hence a widespread feeling that the provision of training colleges should be undertaken by the state as a matter of national concern. Under these circumstances a new system of building grants in aid of the establishment of training colleges was instituted in 1905. In 1906 these grants were raised from 25 to 75% of the capital expenditure, but were limited to colleges provided by local authorities. A further difficulty in view of the municipalization of education arose from the fact that the majority of the residential colleges were in the hands of denominational trusts which did not admit a conscience clause. Under the presidency of Mr McKenna in 1907, the Board of Education, in regulations which excited much controversy, "with a view to throwing open as far as possible the advantages of a course of training in colleges supported mainly by public funds to all students who are qualified to profit by it irrespective of religious creed or social status," laid down that the application of a candidate might in no circumstances be rejected on any religious ground, nor on the ground of social antecedents or the like. The same regulations provided that no new training colleges would be recognized except on terms of compliance with certain conditions as to freedom from denominational restrictions or requirements. The obligation as to religious exemptions has since been limited to 50% of the admissions. There were in attendance (_Statistics_, England, 1907-1908) in the various colleges, 6561 women and 2835 men, of whom 1619 women and 335 men were in colleges provided by local education authorities. The grants made by the Board of Education for training colleges were as follows: maintenance grants L383,851; building grants L45,000. These figures include Wales.

Continuative education.

The fear has been widely entertained that a considerable part of the national expenditure upon elementary education is wasted for want of an effective system of continuative instruction to be given out of working hours to adolescents engaged in industrial employment. The whole subject was exhaustively treated by the report in 1909 of the Consultative Committee of the Board of Education. This report seeks to base an efficient continuative system upon the improvement of elementary education by reducing the size of the classes in the elementary schools upon the lines now laid down by the new staffing regulations of 1909; by increasing the amount of instruction in hand-work with a view to rendering the curriculum less bookish and more efficient as a training for industrial and agricultural life; and by legislation to reform the system of half-time attendance and raise the age of compulsory attendance to thirteen and ultimately fourteen. Upon the foundation of an improved and prolonged elementary education there would be reared a superstructure of continuative schools or classes, attendance at which up to seventeen would be compulsory under bye-laws adoptive locally at the option of the local education authorities. In 1906-1907 about 21 per thousand of the population of England and Wales attended evening schools and classes inspected by the Board of Education, and grant amounting to L361,596 was paid in respect of 440,718 regular attendants.

Secondary education.

The most marked progress has undoubtedly been in secondary education, and in no direction has the act of 1902 proved more fruitful. At the end of the 19th century secondary instruction in England was still provided chiefly by endowed grammar-schools, by proprietary schools established by religious bodies or joint-stock companies, and by private enterprise. No public provision was made for secondary education as such; what financial assistance was forthcoming from municipal sources was given indirectly under cover of the grants under the Technical Instruction Acts, while in the administration of central grants for the first years of the working of the Board of Education Act 1899, no absolute differentiation between secondary and technological functions was recognized. The establishment of local authorities with direct duties in respect of secondary education, and the reorganization of the central office with reference to the three branches of education, elementary, secondary and technological, rendered possible for the first time an adequate treatment of the problem of public secondary education as a whole. "The regulations for secondary schools," says the prefatory memorandum to the regulations of the Board of Education, "grew up round the old provisions of the Directory of the Science and Art Department. Detached science classes were gradually built up into schools of science. Schools of science were subsequently widened into schools of what was known as the 'Division A' type, providing a course of instruction in science in connexion with, and as part of, a course of general education. Aid was afterwards extended to schools of the 'Division B' type in which science did not form the preponderating element of the instruction given. In 1904 the board recast the regulations so as to bring all schools aided by grants within the general definition of a school offering a general education up to and beyond the age of sixteen through a complete graded course of instruction, the object of which should be to develop all the faculties, and to form the habit of exercising them."

Two main tendencies distinguish the recent development: on the one hand the tendency to municipalization, or at least to the establishment of public control; on the other hand the tendency (marked especially by the regulations of 1907) to greater elasticity in regard to curricula, and so to the freer encouragement of local initiative and local effort.

In 1907 the government of Sir Henry Campbell-Bannerman placed greatly increased funds at the disposal of the Board of Education for the purpose of secondary education. The regulations under which the increased grant was administered imposed conditions in respect of freedom from denominational restrictions or requirements, representative local control, and accessibility to all classes of the people, which, like the analogous rules with regard to training colleges, roused considerable controversy. With regard to religious instruction, the requirement was made that no catechism or formulary distinctive of any particular religious denomination might be taught in the school except upon the request in writing of the parent or guardian and at the cost of funds other than grants of public money. Power was at the same time reserved to the board to waive the new conditions in the event of the local education authority passing a resolution that the school was in their view required as part of the secondary school provision for their area, and that the conditions, or one or more of them, might be waived with advantage in view of the educational needs of the area. It will be noticed that one effect of the regulations (as of the training college regulations) was to recognize as a kind of established religion those elements of Christianity which are shared in common by the various Protestant churches, according to the system of Lancaster and the Cowper-Temple compromise. Normally schools are required to provide 25% of free places for scholars from public elementary schools, and, with a view to encouraging the transference of children from the public elementary school at an early age, a grant of L2 was made payable on account of ex-public elementary scholars between ten and twelve years of age. The full scale of grants is L2 for ex-public elementary scholars between ten and twelve, and L5 for scholars between twelve and eighteen. To schools previously recognized and failing to comply with the new conditions, grant may be paid on the lower scale of L2 and L2, 10s. respectively.

Secondary school grants are assessed upon average attendance, and efficiency is guaranteed by inspection and not by individual examination. All recognized schools must provide at least the substantial equivalent of the four-years' course formerly required, and recognition is withheld or withdrawn if an adequate number of the scholars do not remain at least four years in the school, or do not remain up to sixteen; in rural areas, however, and small towns, a school life of three years and a leaving age of fifteen may be accepted. "The board are now in a position, through their inspectorate, to keep a watch and exercise a guidance which were previously impossible over the planning and working of school curricula. Detailed reports following upon full inspections, and the more constant if less obvious influence exercised through informal visits, conferences, reports and suggestions, may now be relied upon to guard against the risks of one-sided education, of ill-balanced schemes of instruction, and of premature or excessive specialization" (Report of Board of Education, 1906-1907, page 68). The curriculum must provide instruction duly graded and duly continuous, in the English language and literature, in geography and history, in mathematics, science and drawing, and in at least one language other than English. Where two languages other than English are taken, Latin must ordinarily be one. Provision must be made for organized games, physical exercises and manual instruction, and in girls' schools science and mathematics other than arithmetic may be replaced by an approved scheme of practical housewifery for girls over fifteen. The total number of secondary schools recognized for grant (_Statistics_, 1907-1908) was 736, of which only 220 were directly provided by local authorities. The number of pupils in attendance was 68,104 boys and 56,359 girls, total 124,463. The government grants for 1907-1908 amounted to L320,873 besides grants from local authorities.

_Wales._

Notwithstanding the important differences which exist between the social and especially the religious conditions of England and Wales respectively, Wales continued to be treated as one with England for purposes of educational administration down to quite recent years. Towards the end of the 19th century the striking revival of Welsh nationality, in itself largely an educational and a literary movement, led to a spontaneous demand among the Welsh people for the organization of a national system of higher education. In accordance with the recommendations of a special royal commission the Welsh Intermediate Education Act passed in 1889 provided for the creation in every county in Wales (including Monmouthshire) of joint education committees consisting of three nominees of the county council and two nominees of the lord president of the council. To these committees were entrusted the duties of framing (under the Charity Commissioners) schemes for the establishment of intermediate and technical schools and for the application of endowments, and for administering a 1/2d. county rate, which was supplemented by a treasury grant not exceeding the amount raised by the rate. Certain supervisory functions were entrusted to a Central Education Board, to which are committed the duties of inspection and examination. The joint education committees have now (except for the purpose of framing schemes for endowments) been superseded by the local education authorities under the act of 1902. The public assistance afforded to secondary education in Wales under the Intermediate Act is supplemented by the grants of the Board of Education, and the Board's revised Secondary School Regulations were applied to Wales in 1908. There were (1907-1908) 92 county secondary schools in Wales administered under schemes made under the Welsh Intermediate Act, attended by 6235 boys and 6727 girls, total 12,962; and 12 other secondary schools, of which 8 were provided by local authorities. The total attendance at all secondary schools was 13,615, viz. 6819 boys and 6796 girls. The Board of Education grant amounted to L31,090. The expenditure of the local authorities for the year 1906-1907 was L85,242.

The number of scholars on the registers of ordinary public elementary schools in Wales was (_Statistics_, 1907-1908), in council schools 330,413, and in voluntary schools 100,290, total 430,703. The percentage of average attendance was 86.98. The ordinary parliamentary grant (1906-1907) was L794,161, and the net expenditure of local authorities L561,234.

In 1907 a Welsh department of the Board of Education was established with a permanent secretary and a chief inspector, each responsible directly to the president. A movement was in progress in Wales in 1908-1909 for the creation of a national council of education under an independent minister, but this change could in any case only be effected by legislation; and meanwhile the special religious and social conditions in Wales caused administrative difficulties in working an act (that of 1902) primarily designed to meet those prevailing in England. (G. B. M. C.)

_United States._

Beginnings.

_History._--The first white settlers who came to North America were typical representatives of those European peoples who had made more progress in civilization than any other in the world. Those settlers, in particular those from England and from Holland, brought with them the most advanced ideas of the time on the subject of education. The conditions of life in the New World emphasized the need of schools and colleges, and among the earliest public acts of the settlers were provisions to establish them. The steps taken between 1619 and 1622 to provide schools for the colony of Virginia were frustrated by the Indian war which broke out in the latter year, and were never successfully renewed during the colonial period. In New York, where the influence of the Dutch was at first predominant, elementary schools were maintained at the public expense, and were intended for the education of all classes of the population. This policy reflected the very advanced views as to public elementary education which were then held in the Netherlands. The assumption of control in the colony of New York by the English was a distinct check to the development of public elementary education, and little or no further progress was made until after the Revolution. The most systematic educational policy was pursued in the colony of Massachusetts. As early as 1635, five years after it was founded, the town of Boston took action to the end that "our brother Philemon Pormort shall be entreated to become schoolmaster for the teaching and nurturing children with us." The General Court of the colony in 1636 made the first appropriation for what was to become Harvard College, taking its name in honour of the minister, John Harvard, who died in 1638, leaving his library and one-half of his property, having a value of L800, to the new institution. The amount of this appropriation of 1636 (L400) was remarkable in that it was probably equal to the whole colony tax for a year. In 1642 followed a legislative act which, while saying nothing of schools, gave to the selectmen in every town power to oversee both the education and the employment of children. It is made the duty of the selectmen to see that the children can read and understand the principles of religion and the capital laws of the country, and that they are put to some useful work.

Five years later, in 1647, was enacted the law which is not only the real foundation of the Massachusetts school system, but the type of later legislation throughout the United States. This epoch-making act, the first of its kind in the world, represented the public opinion of a colony of about 20,000 persons, living in thirty towns. It required every town of fifty house-holders to establish a school, the master of which should be paid either by the parents of the children taught or by public tax, as the majority of the town committee might decide; and it further required every town of one hundred families or house-holders to set up a grammar school in which pupils might be prepared for the "University," as the new institution at Cambridge was designated. Moreover, a penalty was attached to neglect of this legislative requirement, in the form of a fine to be devoted to the maintenance of the nearest school. Horace Mann said of the act of 1647: "It is impossible for us adequately to conceive the boldness of the measure, which aimed at universal education through the establishment of free schools. As a fact it had no precedent in the world's history; and, as a theory, it could have been refuted and silenced by a more formidable array of argument and experience than was ever marshalled against any other institution of human origin. But time has ratified its soundness. Two centuries of successful operation now proclaim it to be as wise as it was courageous, and as beneficent as it was disinterested." The significance of these acts of 1642 and 1647 is that they foreshadow the whole American system of education, including elementary schools, secondary schools and colleges, and that they indicate the principles upon which that system rests. These principles as summarized by George H. Martin in his _Evolution of the Massachusetts Public School System_ are the following:--(1) The universal education of youth is essential to the well-being of the state. (2) The obligation to furnish this education rests primarily upon the parent. (3) The state has a right to enforce this obligation. (4) The state may fix a standard which shall determine the kind of education and the minimum amount. (5) Public money raised by general tax may be used to provide such education as the state requires. The tax may be general, though the school attendance is not. (6) Education higher than the rudiments may be supplied by the state. Opportunity must be provided at the public expense for youths who wish to be fitted for college. These principles have now found expression in the public acts of every state, and upon them education in the United States is founded.

Development.

Despite the praiseworthy attempts made in New York, New Jersey and Pennsylvania to develop schools and school systems, very little was accomplished in those colonies which was permanent. The sentiment in the more southern colonies was, as a rule, unfriendly to free schools, and nothing of importance was attempted in that section of the country until the time of Thomas Jefferson. Through religious zeal or philanthropy colleges were founded as far south as Virginia, and no fewer than ten of these institutions were in operation in 1776. Their present names and the dates of their foundation are: Harvard University, Massachusetts (1636); College of William and Mary, Virginia (1693); Yale University, Connecticut (1701); Princeton University, New Jersey (1746); Washington and Lee University, Virginia (1749); University of Pennsylvania, Pennsylvania (1749); Columbia University, New York (1754); Brown University, Rhode Island (1764); Rutgers College, New Jersey (1766); and Dartmouth College, New Hampshire (1769). In the colleges the ecclesiastical spirit was at first almost uniformly dominant. The greater number of their students were preparing for the ministry in some one of the branches of the Protestant Church. These facts caused the grammar schools to take on more and more the character of college-preparatory schools; and when this was brought about they supplied the educational needs of but one portion of the community. As time passed, the interdependence of governmental and ecclesiastical interests began to weaken in the colonies, and there arose among those who represented the new secularizing tendency a distrust of the colleges and their influence. This gave rise to a new and influential type of school, the academy, which took its name from the secondary schools established in England by the dissenting religious bodies during the latter part of the seventeenth century at the suggestion of Milton. These academies were intended to give an education which was thought to be more practical than that offered by the colleges, and they drew their students from the so-called middle classes of society. The older academies were usually endowed institutions, organized under the control of religious organizations or of self-perpetuating boards of trustees. Their programme of studies was less restricted than that of the grammar schools, and they gave new emphasis to the study of the English language and its literature, of mathematics and of the new sciences of nature. For two generations the academies were a most beneficent factor in American education, and they supplied a large number of the better-prepared teachers for work in other schools. These schools were in a sense public in that they were chartered, but they were not directly under public control in their management. Early in the 19th century there arose a well-defined demand for public secondary schools--high schools, as they are popularly known. They were the direct outgrowth of the elementary school system. Boston, Philadelphia, Baltimore and New York were the first of the large cities to establish schools of this type, and they spread rapidly. These public secondary schools met with opposition, however, springing partly from the friends of the academies, and partly from those who held that governmental agency should be restricted to the field of elementary education. The legal questions raised were settled by a decision of the supreme court of Michigan, which contained these words: "Neither in our state policy, in our constitution, nor in our laws do we find the primary school districts restricted in the branches of knowledge which their officers may cause to be taught, or the grade of instruction that may be given, if their voters consent, in regular form, to bear the expense and raise the taxes for the purpose." This decision gave marked impetus to the development of public secondary or high schools, and they have increased rapidly in number. The academies have relatively declined, and in the Western states are almost unknown.

Meanwhile the elementary school system had grown rapidly. The school district, the smallest civil division, was created in Connecticut in 1701, in Rhode Island about 1750, and in Massachusetts in 1789. From the point of view of efficient, well-supported schools, it has been felt since the time of Horace Mann that the substitution of the small school district for the town as the unit of school administration was a mistake. Yet the school district has exercised a profound influence for good upon the American people. In New York state, for example, there were in 1900 over eleven thousand school districts, and in Illinois over twelve thousand. The districts are small in extent and often sparsely settled. Their government is as democratic as possible. The resident legal voters, often including women, hold a meeting at least once a year. They elect trustees to represent them in the employment of the teacher and the management of the school. They determine whether a new schoolhouse shall be built, whether repairs shall be made, and what sum of money shall be raised for school purposes. In the rural districts this system has often been itself a school in patriotism and in the conduct of public affairs. Recently the tendency is to merge the school districts into the township, in order that larger and better schools may be maintained, and that educational advantages may be distributed more evenly among the people. Most of the southern states have the county system of school administration. This is because the county, rather than the township, has been the political unit in the south from the beginning. Special laws have been made for the school system in cities, and the form of these laws differs very much. In nearly every city there is a separate board of education, sometimes chosen by the voters, sometimes appointed by the mayor or other official, which board has full control of the schools. The city board of education has as its executive officer a superintendent of schools, who has become a most important factor in American educational administration. He exerts great influence in the selection of teachers, in the choice of text-books, in the arrangement of the programme of studies, and in the determination of questions of policy. Sometimes he is charged by law with the initiative in some or all of these matters. He is usually a trained administrator as well as an experienced teacher. The first superintendent was appointed in 1837 at Buffalo. Providence followed in 1839, New Orleans in 1841, Cleveland in 1844, Baltimore in 1849, Cincinnati in 1850, Boston in 1851, New York, San Francisco and Jersey City in 1852, Newark and Brooklyn in 1853, Chicago and St Louis in 1854, and Philadelphia in 1883. In general, it may be said that the progress of public education in the United States is marked by (1) compulsory schools, (2) compulsory licensing of teachers, (3) compulsory school attendance, and (4) compulsory school supervision, and by the increasingly efficient administration of these provisions. The compulsion comes in each case from the state government, which alone, in the American system, has the power to prescribe it and to enforce it. Each state is therefore an independent educational unit, and there is no single, uniform American system of education in any legal sense. In fact, however, the great mass of the American people are in entire agreement as to the principles which should control public education; and the points in which the policies of the several states are in agreement are greater, both in number and in importance, than those in which they differ. An American educational system exists, therefore, in spirit and in substance, even though not in form.

National policy.