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A STUDY OF THE ADMINISTRATIVE ORGANIZATION AND
STAFFING OF THE JUNIOR HIGH SCHOOLS OF NEW
YORK STATE, EXCLUSIVE OF NEW YORK CITY

By

McDonald Frederick Egdorf

AN ABSTRACT OF A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

DOCTOR OF EDUCATION
College of Education

1962

Page 1 of h

ABSTRACT

A STUDY OF THE ADMINISTRATIVE ORGANIZATION AND
STAFFING OF THE JUNIOR HIGH SCHOOLS OF NEW'
YORK STATE, EXCLUSIVE OF NEW YORK CITY

by McDonald Frederick Egdorf

Statement of the Problem
This is a study of organization and staffing of the
Junior high school in New York State. It was assumed here
that to improve the instructional program for pupils a par-
ticular kind of administrative organization and staffing is
.needed.

These five basic questions received special con-

sideration:

1. What are the operational purposes of the Junior
high school?

2. What are the administrative and supervisory
functions needed at the junior high school level
to carry out these purposes?

3. What administrative and supervisory positions
should be established to perfbrm these functions?

hm What is the job description of individuals who
are to administer the junior high school?

5. What patterns of administrative organization will
relate these positions in such a way that needed

 

McDonald Frederick Egdorf
Page 2 of 4

functions will be performed and stated purposes
will be served?

Procedure

Three basic research procedures were employed in

gathering data:

1. An intensive review of the post-91900 literature
in selected areas pertaining to administrative
organization and staffing on the junior high

‘ school was undertaken.

2. A series of seminar discussions, under the direc-
tion of six institutions of higher learning in
New York State were conducted.

3. A questionnaire was constructed and sent to all
registered junior high schools in New York State,
exclusive of New York City.

The Major Findings of the Study

The current staffing pattern of the schools in this -
study Were inadequate when contrasted with staffing recom-
mendaf:..1.ons of educational authorities contained in the
literature. Most schools need additional administrative,
guidance, health, instructional material and remedial in-
an"nlCBtLlon personnel.

The predominate pattern of administrative organi-
zation appeared to be that of a strict line authority concept,

 

 

 

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McDonald Frederick Egdorf
Page 3 of A

suggesting that the administrative structure of most schools,
was autocratic at least in theory, if not in practice.

The seminar groups identified 1.3 administrative
and supervisory functions. These functions were not unique
to the junior high school, but applicable generally to all
levels of public school administration.

01' the 1.3 administrative and supervisory functions,
principals in 82 per cent of the instances are directly in-
volved in administration of these activities, regardless
of the size school, the adequacy of the administrative staff,
or pattems of administrative organization. Administrative
functions are not being assigJed to associate administrators
or to school staffs.

The administrative positions in junior high schools
are designed to improve the instructional program by facili-
tating the teaching-learning process. The improvement of
instruction has not occurred to a large degree because of
a lack of job descriptions of individuals in schools.

The administrative and supervisory positions as well
as positions needed to provide services to pupils and teachers
reccetllmended by the seminar groups appear adequate to fulfill
Purposes of the school and in keeping with staffing recom-
mendations of educational authorities.

Some schools cannot justify certain administrative

0r aervice positions on their staffs, either for keeping the

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McDonald Frederick Egdorf
Page A of A

school in operation, providing services to pupils or teachers

or to improve the quality of the instructional program. Some
schools are overstaffed as well as understaffed in certain
administrative and service areas considered necessary to

meet needs of individuals or fulfill objectives.

The guidelines developed for organizing and staffing
are consistent with the value system of a democratic society
and should provide an organization structure to meet the
needs of individuals and fulfill purposes of the school.

Organizational structure facilitates or impedes the
accomplishment of objectives. A flat administrative or-
ganization furthers the purposes of a free society more
effectively than does a pyramidal structure. To construct
an administrative organization for schools, this dissertation
defends the point of view, that only those concepts of or-
ganization which are in keeping and further the ideals of a
democratic society should be utilized.

1% STUDY OF THE ADMINISTRATIVE ORGANIZATION AND
STAFFING OF THE JUNIOR HIGH SCHOOLS OF NEW
YORK STATE, EXCLUSIVE OF NEW YORK CITY

By

McDonald Frederick Egdorf

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

DOCTOR OF EDUCATION
College of Education

1962

 

 

    

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ACKN OWLEDGMEN TS

I am indebted to many people for the help they have
given me in completing this study which, without their aid,
would have been impossible for me to undertake and to com-
plete -

I I should like to express my especial gratitude to Dr.
Clyde Campbell, friend, inspirational teacher, and chairman
of my doctoral committee. I deeply appreciate his ability
gently and imperceptibly to inspire and encourage my efforts.
His understanding, patience, and assistance, as well as his
constructive and perceptive criticisms of this study, and
his availability for conferences are gratefully acknowledged.

I should like to thank Dr. Duane Gibson for his per-
ceptive analysis of certain statistical problems and sug-
ge"4310113 for their solution, Dr. Troy Stearns for his inspir-

atiOnal and seminal ideas, Dr. Floyd Parker for his stimula-
tion-e and Dr. Jean LaPere for her helpful suggestions.

I appreciate the kindness of Dr. Daniel E. Griffiths,

Dinetoor of Studies, Council for Administrative Leadership
f0? the State of New York, for providing me the opportunity
t° make this study.

For their work in planning and administering seminars,

I w1511'! to acknowledge the assistance of Dr. George Holloway

01' the University of Buffalo, Dr. Mauritz Johnson of The New
11

  
  

21:33:; College for Tea:
.‘Ti-zaicrk University, Dr
;:go.for Teachers at On;

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175.32%. To all of thes

:aizieerslty, and Dr.

, necessary for this
Especially, I show.
Trio, Julia, ad to my

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inking, faith, azi
inglete the advanced :
A.) “Pi \ v

u. as tneels. I de

""?'*5r‘lh-law, and t.

York State College for Teachers at Albany, Dr. Forrest Long
of New York University, Dr. James Sampson of The New York
College for Teachers at Oneonta, Dr. Robert Stewart of Syra-
cuse University, and Dr. Byron Williams of the University of

Rochester. To all of these, and others who helped in the re-

search necessary for this study, I am grateful.
Especially, I should like to express my gratitude to

my wife, Julia, and to my sons, Philip, Jon, and Roger, who's
understanding, faith, and endurance made it possible for me
to complete the advanced study which culminated in the writ-
ing of this thesis. I dedicate it to them and to Patricia,
my daughter-in-law, and to Terri Ann, my grandaughter.

iii

 

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Statement of c
Need for the 5
Definition of
Scope of the

lion the Study

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first Esta‘o]
Brunt. of L"
the;

ACKNOWLEDCMENTS . . . .
LIST OF TABLES . . . .
LIST OF FIGURES . . . .
LIST OF APPENDICES . .

Chapter
I - INTRODUCTION .

Statement of the Problem
Background of the Study

Need for the Study . . .
Definition of Terms
Scope Of the Study 0 e e o
How the Study was Conducted .
Basic Assumptions and Frame of
Limitations of the Study . . .

CONTENTS

Page
0 e e e e e e e e e e e 11
e e e e e e e e e e e e x
e e e e e e e e e e e e X11

0 O O O O O O 0 O O O 0 X111

0 O O O O O O O O O O O l
O O O O O O O O O O 3

O O O O O O O O O O A

O O O O O O O O O O 9

O O O O O O O O O O O O 12
e e e e e e e e e 15

O O O O O O O 18

Reference . . 21

e e e e e e e 23

II. HISTORICAL DEVELOPMENT OF THE JUNIOR HIGH SCHOOL 27

Early History of Secondary School Organization 28

Demands fer School Reorganization . . . 33

First Establishment of the Junior High School 38

Extent 0f the MOVemnt e e e e e e e e e e e ’52
111. THE FUNCTION AND PURPOSE OF THE JUNIOR HIGH

SCHOOL 0 O O O C C O C O O O O O O O O O O O [.9

Function and Purpose, as Reported in the

Literature e e e e e e e e e 1&9
Operational Purposes, as Defined by the
33mm” Groups 0 e e e e e e e e e e e e e 59

IV. THE PRESENT STATUS OF AMNISTRATIVE ORGANIZATION
gggngurmc OF THE JUNIOR HIGH SCHOOLS IN THIS 6
OOOOOOOOOOOOOOOOOO. 5

Securing the Data

iv

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Table of Contents
Page

A Brief Description of the Junior High Schools 72
Counties in the Study e e e e e e e e e e 72
Geographic Location of the Counties . . . . 75
Total Pupil Enrollment in the School Dis-

tricts e e e e e e e e e e e e e 75
Taxable Wealth, Full Value, per Weighted
Pupil e e e e e e e e e e e e e 76
Tax.Rates per Thousand Dollar-~Full Value . 77
Per Capita Current Expenditure per Pupil . 78
Teachers per Thousand Pupils . . . . . . 79
Enrollments in the Junior High School . . . 81
Administrative Positions . . . . . . . . . . 81
Building Principals e e e e e e e e e e e e 82
Assistant Building Administrators . . . . . 83
Assistant Principal e e e e e e e e e 86
Coordinator Of Pupil Activities e e e e e e 88
A8318tant to the PrinC1pal e e e e e e e e 90
Director of Physical Education . . . . . . 90
Administrative Intern . . . . . . . . . . . 9O
Coordinator of Pupil-Personnel Services . . 90
Administrative Assistant . . . . . . . . . 91
Relation of Total to Number of Pupils . . . 91
Guidance Services 0 e o e e e e e e e e e e e 93
Guidance counselors e e e e e e e e e e e 0 9h
SChOOl P3y0h010g18t e e e e e e e e e e e e 95
Health SerV1CCS 0 0‘0 0 e e e e e e e e e e e 97
SChOOl Nurse '0 e e e e e e e e e e e e e e 99
Dental Hygien18t e e e e e e e e e e e e e 101
Department Chairmen e e e e e e e e e e e e e 102
Instructional Nhterials Services . . . . . . 108
SChOOl Librarians e e e e e e e e e e e e e 108
Audio-Visual Specialists . . . . . . . . . 109
RBMBdial In3tru0tion e e e e e e e e e e e e 111
Remedial Reading e e e e e e e e e e e e e 111
SpBGCh correCtion e e e e e e e e e e e e e 113
Pupil-TeaCher Ratio e e e e e e e e e e e e e 115
Professional Service from the District Office 120
Instrumental Music Teachers . . . . . . . . 123
Art Teachers e e e e e e e e e e e e e e e 123
Shop Teachers 0 e e e e e e e e e e e e e e 12#
Homemaking e e e e e e e e e e e e e e e e 12“
Vocal MhSIC e e e e e e e e e e e e e e e e le
PhYSical Education e e e e e e e e e e e e 124
Mathematics e e e e e e e e e e e e e e e e 125
SCience e e e e e e e e e e e e e e e e e e 125
V

A
110.
l i.

Table of Contents

Chapter Page
Mbdern Language e e e e e e e e e e e e e e 125
EDEliSh e e o e o e e e o e e e e e e e e e 125
Latin 0 o e e e e e e e e e e e e e e e e e 126
Business Education 0 e e e e e e e e e e e 126
P8YChOlog13t e e e e e e e e e e e e e e e 126
Guidance counselors e e e e e e e e e e e”. 127
SOCial WOrker e e e e e e e e e e e e e e e 127
SChOOl Nurse e e e e e e e e e e e e e e e 127
DQUtal Hygienist e e e e e e e e e e e e e 127
SpeeCh correCtion e e e e e e e e e e e e e 128
Remedial Reading 0 e e e e e e e e e e e e 128
Lip Reading 0 o e e e e e e e e e e e e e e 128
SPGCial TeaCher e e e e e e e e e e e e e e 129
Audio-Visual Specialists . . . . . . . . . 129
DireCtor Of IDStruCtion e e e e e e e e e e 129
Attendance Officers 0 e e e e e e e e e e e 129

Typical Current Staff in New York Junior High

SChOOlS e e e e e e e e e e e e e e e e 129
Schools with Less than Six Hundred Pupils . 130
Schools with Between Six and Nine Hundred

Pupils e e e e e e e e e e e e 131
Schools with.Mbre than Nine Hundred Pupils 132

V. AMBISTRATIVE AND SUPERVISORY FUNCTIONS DEEMED
NECESSARY TO CARRY OUT THE PURPOSES OF THE
JUNIOR HIGH SCHOOL e e e e e e e e e e e e e 133

Identification of Administrative and Super—

visory FunCtions e e e e e e e e e e e e e 133
Statement of the 43 Functions . . . . . . . . 136
Securing 0f the Data 0 e e e e e e e e e e e 138
WOrk with Instructional Program . . . . . . . 140

Curriculum and Curricular materials . . . . 140

Diagnosis of Learning Difficulties . . . . 142

Remedial Instruction . . . . . . . . . . . 143

Recommendations Regarding Policy . . . . . 144

Coordination of Guidance Program . . . . . 145

Pupil Activity Program . . . . . . . . 146

Program for Exceptional Children . . . . . 146

Health and Safety Program . . . . . . . . . 147

Summer Recreation Program . . . . . . . . . 148

Use of Instructiona1.Naterials . . . . . . 149
Whrk With Pupils e e e e e e e e e e e e e e 150

BehaVIOr Control e e e e e e e e e e e e e 150

Pupil-Accounting e e e e e e e e e e e e e 152

Pupil-Scheduling e e e e e e e e e e e e e 153

Personnel Records e e e e e e e e e e e e e 15#

Pupil-Orientation e e e e e e e e e‘e e e e 15h

vi

no...
a

awn.

Table of Contents

Chapter
Work With Personnel 0 o o 0

Selection and Recommendation

Induction and Orientation
Supervision o o o o o o 0
Evaluation . . . 0
Personnel Records .
Substitute Teachers
Inservice Training
Counselling . . . .
SChedUIing o c o o
Wbrk with Community . . .
Determination of School's

Special Reports and Bulletins .
Conferences with Individual Citi e
PoTvo and Other Lay Groups 0 0
Public Relations Information .

Reports to Parents . . .

The Program of Public Relations
werk with Funds and Facilities .

Budgetary Re uests . . .

IManagement o Appropriations .
Plant Planning and Construction

Student Insurance Program
Plant maintenance . . .
School Lunch Program .
Intra-Mural Activities
Supplies and Equipment
Specifications
Requisitions .
Distribution .
Inventory 0 o o o o o 0
Reports to Superintendent

VI. GUIDELINES FOR AIMINISTRATIVE
STAFFING IN THE JUNIOR HIGH

0 O O
o O O
O O O

O O O O O O O O O
O O O O 0 O O O O
O O O O O O O O O
O O O O O O O O 0
Education Needs .

Z 113 o o 0
O O O O O O O O O

O O O O O O
O O O O O O O O O

O O O O O O

O O O O O O
O O O O O O O O O
O O O O 0 O O 0 O
O O O O O O O O O
O O O O O O .0 O O
O O O O O O I O O
O O O O O O O O O
O O O O O O O O O
O O O O O O O O O

ORGANIZAle AND
SCHOOL . . o o 0

Factors in Administrative Organization and

Staffing 0 o o o o o o
Planningoooooooo
Organization . . . . . .
Line and Staff 0 c o 0
Assignment of Activities
Grouping of Activities .
Council and Committees .
Span Of contml o o o o 0

vii

Page

155
157
157
158
159

160
161
162
162
163
163
165

167
168
168
169
170
170
172
173
174
175
175
176
177

178
179

180
182

185
193

198
200
202
203
204

4
i“

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Mo 1 on s.“ or.“ a»: #9 NA. . a “V” QM “Mum C0 “a An“ ".‘U _ M1 Mm H\U fin. un—u anew amen 1.3 «\u 7 t 918 YL an; 5-1 h
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9.! a. . O .u

AXV

Table of Contents

Chapter Page
Staffing 0 o o o o o o o o o o o o o o o o o 206
Determining Staff P031tion3 o o o o o o o 207
Selection of Staff Personnel . . . . . . . 208
Interrelationship between Staffing and Cr-
ganization o o o o o o o c o o o o o o o 209
Staffing Patterns 0 o o o o o o o o o o o 210
Direction 0 o o e o o o o o o o o o o o o o 213
Leadership 0 o o. o o o o o o o o o o o o o 212
Power 0 o o o o o o o o o o o o o o o o o 2].
Authority 0 o o o o o o o o o o o o o o o 219
Responsibility 0 o o e o o o o o o o o o o 221
Comunication o o o o o o o o o o o o o o 225
Control 0 o o o o o o o o o o o o o o o o o 227
Coordination o o o o c o o o o o o o o o o 229
Unity of Command 0 o o o o o o o o o o o c 231
POlicy Development 0 o o o o o o o o o o o 235
Evaluation 0 o o o c o o o o o o o o o o o o 236
Guidelines for Administrative Organization and
Staffing 0 o o o o o o o o o o o o 'o o o c 2".0
VII. AMNISTRATIVE AND STAFF POSITIONS NEEDED IN
THE JUNIOR HIGH SCHWL o o o o o o o o o o o 246
Reuew Of the Literature 0 o o o o o o o o 0 24-8
Administrative Personnel . . . . . . . . . . 258
Guidance Personnel 0 o o o o o o o c o o o o 260
3011001 P3y0h010g15133 o o o o o o o o o o c o 262
Instructional Services 0 o o o o o o o o o o 263
Librarian o o o o o o o o c o o o c o o o 6 26h
Instructional Materials Consultant . . . c . 265
Remedial Services 0 o o o o o o o o o o o o 266
Reading CODSUltanto o o o o o o o o o o o o o 267
81339011 Correctionist o o o o o o o o o o o o 268
Health Services 0 o o o o o o o o o o o o c 270
SchOOl Nurse 0 o o o o o o o o o o o o o o o 270
Dental Hygienist o o o o o o o o o o o o o o 270
Total Professional Staff Needed . . . . . . 271

Staffing Recommendations of the Seminar Groups 272

VIII. DEVELOPING JOB DESCRIPTIONS OF THE JUNIOR HIGH
schL PERSONNEL O O O O O O... O 0‘ O 0 0 ‘0 O 275

Reasons"for Principal's Failure to Improve

“metiona1 Program 0 o o o o o o o o o 278
10301! of KDOWledge or on JOb o o o o o o o 279
Sufficient Staffing 0 o o o o o o o o o o 280
Unwillingness to Delegate Authority . . . 282

viii

 

1.4

J 5'

......
.

lack of Job 1
Developing Jo‘t
Administrati'
The Desired
organization
Job Descriptio
Building Pri
Assistant PI‘
Assistant Pr
Coordinator
Coordinator

'7 .
.. moms FAITH
RECESS c o 0

Basic Assumpti
flatulle Juni
eville Jun:
School-Within-

I. a! or Fizz):
NJ ARES $9.:

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Q of 5“:
§0n01u810ns :
Mona .4 .
S~ Ratio
“asestions “
{Ag-:33"
.uz . . . .
x...“

 

Table of Contents
Chapter.

Lack of Job Descriptions fer Assistants
Developing Job Descriptions . . . . . .
Administrative Functions . . . .
The Desired Administrative Positions
organizational Pattern o o o o o o o
Job'Descriptions o o o o o o o o o o 0
Building Principal o o o o 0'. o o 0
Assistant Principal for Instruction .
Assistant Principal for Business . .
Coordinator of Pupil Activities . .
Coordinator of Instructional materials

IX. DEVELOPING PATTERNS OF ADMINISTRATIVE ORGANI-

ZATIONS o .. o o o e o o o o o o o o o o 0
Basic Assumptions 0 o o o o o o e

Flatville Junior High School . . . 3 3 I
Lineville Junior High School . . . . . o
School-Within-a-School Organization . . .

Page

28

28

289
292
292
294
295
298
300
302
302

306

311
313
322
331

X. SUMMARY OF FINDINGS CONCLUSIONS, RECOMMENDATIONS

ANDAREASFORFURTRERSTUDY.......

Procedure and methodology .
Summary of Findings . . . .
Conclusions 0 o o o o o o 0
Recommendations . . . .
Suggestions for Further Study

BIBLI om Y O O o O O O O O O O O O O O O O O C O
APPEN DI CES O O O O O O O O O O O O O O O O O O O

0....
0....
0....
0.0..
.0...
.0...

ix

339

340
341
353
358
363

367
374

 

 

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Saber and Types
finned States,

Title and Ember
£05911 York St

3 mil-Principal

Jmior High Sc

EDI-Assistant
York State Ju:

Puljil-Assistam
Ghats J “.1110:- ]
hm~coordinatv

York State Ju

 

Table
l.

2.

3.

A.

5.

6.

7.

8.

9.

10.

12.

13.

LIST OF TABLES

Page

Number and Types of Secondary Schools in the
United States, 1920-1959 e e o e o o o e o e o 45

Title and Number of Administrative Positions in
to New York State Junior High Schools . . . . 82

Pupil-Principal Ratios in #0 New York State
Junior High Schools by Enrollments . . . . . . 8h

Pupil-Assistant Administrator Ratios in 40 New
York State Junior High Schools by Enrollments 85

Pupil-Assistant Principal Ratios in 40 New‘York
State Junior High Schools by Enrollments . . . 87

Pupil-Coordinator of Student Activities in AC New
York State Junior High Schools by Enrollments 89

Pupil-Administrator Ratios in 40 New Ybrk State
Junior High Schools by Enrollments . . . . . . 92

Pupil-Guidance Counselor Ratios in to New York
State Junior High Schools by Enrollments . . . 96

Pupil-Psychologist Ratios in AC New York State
Junior High Schools by Enrollments . . . . . . 98

Pupil-Nurse Teacher Ratios in 40 New York State
Junior High Schools by Enrollments . . . . . . 100

Pupil-Dental Hygienist Ratios in AC New York State
.Junior High Schools by Enrollments . . . . . . 103

Pupil-Department Chairman Ratios in 40 New York
.State Junior High Schools by Enrollments . . . 107

Pupil-Librarian Ratios in L0 New York State
_Junior High $9h0018 by EUFOllments o o o o o e 110

Pupil-Audio Visual Administrators Ratios in 40
New York State Junior High Schools by Enroll-
mant o e o o e e o o o o o o o e o o o o o o o 112

 

 

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Table

15.

16.

17.

18.

19.

20.

21.

22.

23.

List of Tables

Pupil-Reading Specialist Ratios in #0 New York
-State Junior High Schools by Enrollments . .

Pupil-Speech Correctionist Ratios in #0 New York

State Junior High Schools by Enrollments . .

Pupil-Teacher Ratios in to New York State Junior

High SChOOlB by Enr01lm33t8 o o o o o o e 0

Services Performed frOm the District Office in
L0 New York State Junior High Schools by En-
rollments o e e e o o o o o e e e o e o o o

How Principals Handle Certain Administrative
Functidns Related to Improving Educational
Opportunity in L0 New York State Junior High
Schools with Different Size Enrollments . .

How Principals Handle Certain Administrative
Functions Related to Working'With Pupils in
no New York State Junior High Schools with
Different Size EHPOllments e o o o o o e o o

How Principals Handle Certain Administrative
Functions Related to Obtaining and Developing
Personnel in to New York State Junior High
Schools, with Different Size Enrollments . .

How Principals Handle Certain Administrative
Functions Related to Maintaining Effective
Interrelationships with the Community in LO
New York State Junior High Schools, with
Different Size Enrollments . . . . . . . . .

How Principals Handle Certain Administrative
Functions Related to Providing Funds and
Facilities in 40 New York State Junior High
Schools, with Different Size Enrollments . .

Page

11k
116

117

121
141
151

156

164

171

 

'.. Crgarizat ion Char.
l. Paulie Junior 1
3. manila J‘mior

L. School-'fithin-a-E
ganizatiou CW

1“ 1

Figure

1.
2.
3.
A.

LIST OF FIGURES

OrganizationChart..............
Flatville Junior High School Organization Chart
Lineville Junior High School Organization Chart

School-Within-a-School Junior High School Or-
ganizationChart..............

xii

Page
293
315
32A

332

t 4
. .

3J1:
\ “I 1 “o

unior Rig;
3. Letter of Tr
3' mtline 0f 1'

cussing Ad
Staffing 2

LIST OF APPENDICES

Appendix Page

A. Sample Statements of Objectives of the
JuniorHighSchool............ 375

B. Letter of Transmittal and Questionnaire . . 377
C. Outline of Meetings, Syracuse University Dis-

cussing Administrative Organization and
Staffing at the Junior High School . . . . 38h

xiii

CHAPTER I
INTRODUCTION

This is a study dealing with administrative organi-
zation and staffing of the modern junior high school in
New York State, exclusive of New York City. In the February

l95h, Review of Educational Research, Wiles, stated that:

It is evident from the preceding chapters that the
committee has deep feelings about the school for
adolescence. Some chapters conclude with queries
concerning why we do not put into practice what we
have learned from research or make a more fundamental
approach to re-organizing the secondary school.1

In this same document, which represents an analysis
of the research pertaining to the educational program for
adolescents for the preceeding three years, only one para-
graph is devoted to the organization of the junior high
smhool. In regard to organizing schools for adolescents,
Parkera'd Lewis stated that "the writer's . . . analysis of
murent research has failed to isolate an effective form for
the organization of the secondary school . . . as yet, real
evidence indicating solutions for a number of organizational

problems has failed to emerge."2

k

0 1American Educational Research Association, Review

f Educational Research, XXIV (Washington D. C.,: N.E.A. ,
February, 1951+), P0 1660
2Ibid., p. 79.

N4

 

-2-

Failure to investigate and test hypotheses regarding
the Junior high school and its effectiveness are apparent.
This statement is applicable to the administrative organi-
zation of such schools. What ever administrative organiza-
tion the junior high school has had, it appears to be a
prototype of that used in the senior high school, despite
the fact that many educational authorities on secondary edu-

cation have long contended that the Junior high school serves

unique educational purposes. The stated purposes have seldom

been related to the necessary administrative and supervisory
functions which would be needed to serve their purposes.

In the current era of criticisms of schools, it is
imperative that organizational purposes and functions be
clearly defined by each segment of our public school organi-
zation. Each school must have a professional staff to serve
the purposes of the organization as well as having the re-
sponsibility to perform the functions of administration. Some
logical analysis and description of functions to be executed
by the individual administrator must be made. The adminis-
trative organization should clarify and distribute responsi-
bility among individuals, consistent with the purposes of
the institution. Administrative functions are important
”11? to the extent that they contribute to the improvement
01’ educational opportunity for children. The adequacy of
the administrative staff is dependent upon a number of

Variables and cannot be included in a emperical formula.

-3-

This study attempts to provide helpful background
information, for those individuals interested in the junior
high school, to develop through administrative organization
and staffing patterns an improved instructional program fer
early adolescents. The instructional program will be im-
proved if functions are identified and responsibility for
their fulfillment established. Job descriptions for in-
dividuals are needed to identify~positions, establish re-
sponsibility,and to relate functions to positions. With a
plan for organization, an adequate administrative staff can
be projected which is structured to provide needed services

to teachers and pupils for a modern junior high school.
Statement of th oblem

The study was designed to assist school adminis-
trators in New York State with the problem of organizing and
administrative staffing of the junior high school. This
unit of the school system was selected because, as the newest
unit in organizational patterns of operation, it has received
very little attention relative to staffing. Serious ques-
tions have arisen regarding the quality of modern day edu-
catdonal programs. New programs are being examined and
considered for adaption. As a result of this self-examination
it ‘is being discovered that many traditional ways of operating
schools are not necessarily the better ways- New organiza-

tional patterns that place staff members in more challenging

MI
I

-4-
roles, combined with improved programs of education, en-
courages many to believe that the junior high school will
make a far greater contribution to educating early adoles-
cents.

The study is designed to answer five questions:

1. What are the operational purposes of the junior
high school?

2. What are the administrative and supervisory
functions needed at the junior high school
level to carry out these functions?

3. What administrative and supervisory positions
should be established to perform these functions?

A. What is the job description of the individuals
who are to administer the junior high school?

5. What pattern of administrative organization
will relate these positions to one another in
such a way that the needed functions will be

performed and the stated purposes will be
served?

Backggound of the Study

Leaders in the field of school administration be-
mmm quite concerned, during the decade 1940-50, about the
quality of administrative leadership of America's public
schools. The W. K. Kellogg Foundation generously contributed
four and a half million dollars in 1950 to finance an im-
Proved nation-wide professional preparation program for
school administrators. Eight'university centers were set
uPtoadminister the project. New York State was a portion
0f the Middle Atlantic Region assigned to Teachers College,
Columbia University.

 

I

-5-

In 1952, in New York State, several separate com-
mittees, representing the various professional organizations,
were studying pertinent problems of their organizations. It
was agreed that there would be value in joining forces to
fonm a single state-wide organization of all administrative
groups to study common pressing problems. Soliciting the
assistance of the State Education Department and the Coopera-
tive Program in Educational Administration (CPEA) there was
formed a group, unique to New York State Administrators,
called Cooperative Development of Public School Administra-
tion (CDPSA). The primary objective of this new organiza-
tion was to unify efforts to "improve the quality of school
administration in New York State." The new organization
consisted of the members of:

The New York State Education Department,

New York Council of School Superintendents,

New York Association of Central School Principals,

New Yerk School Boards Association,

New York State Teachers Association,

New York Association of Secondary School Principals,

New York Association of Elementary School Principals,

New York Association of School Business Officials,

Association for Supervision and Curriculum Development,

and the

Cooperative Program in Educational Administration

Middle Atlantic Region.

 

-
_'-

 

 

'.

 

 

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This organization was governed by a Joint Committee, con-
sisting of delegated representatives from each of the member
organizations.

Shortly after its formation, the Joint Committee
called together a number of professors of school adminis-
tration, from the leading colleges and universities in the
state, to examine and discuss selected research projects
pertaining to administration in local school systems. The
universities of Buffalo, Cornell, Syracuse, New York State
College for Teachers, Albany, and Teachers ‘College, Columbia
University, each formed a research team of college pro-
fessors and school administrators to undertake one phase
of the total project. The work of CDPSA was centered around
the problem of administrative organization and staffing.
These studies developed job descriptions for a number of ,
administrative positions, including the superintendent of
schools, the school business official, the elementary and
secondary school principals, and others, as well as investi-
gating modern concepts and practices in staffing schools.
Eight bulletins were published and distributed by the or-
ganization to all school administrators and interested
educators in New York State.

With the exhaustion of funds from the Kellogg Founda-
t4011, the Cooperative Program in Educational Administration
Middle Atlantic Region, (CDPSA) came to an end. However,

since the organization had made significant contributions

-7-
to the literature of educational administration, some of
the interested groups wished to carry on further research,
heretofore not undertaken.

In 1956, New York State's five major organizations
of educational administrators formed a federation to serve
as a clearing house and coordinating agency for the member
groups on matters of educational policy and research. This
new federation was called ”Council for Administrative Leader-
ship” and its work began in the school year 1956-57. _

The "Counciv'was established within the framework
of the New York State Teachers Association, with one of its
administrative officers as Executive Secretary to the group.
The Cooperative Center for Educational Administration at
Teachers College, Columbia, was a major contributor to the
project. Provision was made for government by representatives
of:

New York Council of City and Village Superintendents,

New York State Association of Elementary School
Principals,

New York Association of Secondary School Principals,
New York Association of District Superintendents,
New York Association of School Business Officials,
New York State Education Department, and

Colleges and Universities in New York State preparing
school administrators.

The Council serves the following function:

1. To increase the free flow of ideas and services

 

Mi

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n.

 

 

A .

-3-
among practicing school administrators, the schools of edu-
cational administration, and the State Education Department.
2. To provide an effective organ for developing

coordinated policies of school administration on State-wide

educational matters.

3. To provide leadership and coordination in the

development of a program of research in the problem of
school administration.

A. To provide leadership and coordination in the
development of programs of recruitment and selection for

future school administrators, continuing improvement of

programs of preservice preparation and inservice development
of school administrators, and the maintenance of realistic

standards of licensure for school administrators.

5. To promote the development and maintenance of

standards of professional ethics for school administrators.

During the existence of the CDPSA organization, its
study and research was basically concerned with school-

district-wide organization and staffing. As a consequence

of these studies, numerous requests had been made to in-
vestigate the administrative staffing of units within the

system-wide organization. Most requests were made to give

Priority to a study of the administrative staffing and organi-

zation of the junior high school. There was a specific re-

quest that, in the study of the junior high school as an

administrative unit, particular emphasis should be directed

l

u.

-~

 

-9-

to determine the amount as well as the kind of staff necessary
to serve the function of a modern junior high school. With
these recurrent requests for information on how to staff
school units, particularly the junior high school, the

Council agreed to undertake the study and contacted the

writer to serve as coordinator.

Need fer the Study

Despite the tremendous increase in the reorganization

of secondary education that has occurred since 1920, the
administrative organization and staffing of the junior high
school has never been the subject of comprehensive study.
A review of educational literature, starting with the first
junior high school to 1955, fails to report a single study
on this subject. If such studies were made, they are not
to be found in the educational literature. modern day text-
books on school administration have been nearly as void in
giving insight or suggestions to practicing administrators
in this area. If educational administration is to become
more of a science than an art, research is imperative to
the growth of the profession. Studies and research in ad-
IUnistrative organization and staffing are particularly
humrtant to the junior high school, the newest unit in the
secondary school pattern. 9

Various disciplines have contributed to knowledge

about how children learn best and under what conditions

 

“u

'v

‘\

-10-
- learning takes place. This newly acquired knowledge has

been utilized to provide additional services to both teachers
and children-~services that the community wants available

to improve the quality of education for its children. It

is not unusual for these services to represent five to ten
different individuals on the'school's staff. If maximum
contributions are to be obtained from these services, they
must be coordinated. The role and job description of each
individual must be clearly stated and understood if optimum
results are to be achieved.

The size of the junior high school that is being
treated in this study, necessitates a total professional
staff of from 45 to 60 individuals.) The actual number of
individuals on a school staff will depend upon the schools
enrollment, services to teachers and pupils, the ratio of
pupils to teaching and administrative staff and other similar
factors. In addition, there are other professional personnel
from the district or superintendents office that perform ad-
nflnistrative functions, with the junior high school adminis-
trative, service, or teaching personnel. It is the opinion
of’educational authorities, and assumed here, that all
professional staff in a given building should be responsible
‘to the titular head of the building, its principal. Effec-
tive organizational and staffing patterns, developed for the
juuriorihigh school, must be cognizant of the span of control
as well as the unity of command. To expect the building

 

D-'

(L

...

‘~

‘1

-11-
principal to provide effective leadership for the improve-
ment to instruction, to coordinate plans and scheduling of
necessary activities fer day-to-day operation, to appraise
and evaluate performance of individuals, requires a workable
organizational pattern and adequate admdnistrative staff.
Authorities in education recognize that the building principal
is alone responsible for the effective operation of his
school. There are numerical limits, however, as to the
number of individuals that should report to and be directly
responsible to a single administrator. It was the hypothesis
of the designers of this study that the current administrative
staffs in existence in New York State junior high schools were
inadequate to carry out the purposes and perform the necessary
administrative functions, for an effective educational pro-
gnmn.

The administrative organization and staffing of a
junior high school unit should not have been the result of
a single individual's prejudices or inventiveness, a proto-
type of the senior high school, or a duplication of some
neighboring school. Neither should staff or administrative
positions be created to satisfy pressure from individuals or
‘groups seeking status recognition. Organization and staffing
should be the result of a study that relates needed positions
‘to the agreed functions and purposes of the organization,
the purposes having been previously defined and, agreed upon

on an operational basis. Positions of staff should be

-12-
added only as they contribute to the betterment of the pro-
gram of instruction.

Demographers have adequately portrayed the need for
community concern about adequate facilities for adoles-
cents. These needed buildings, to be effectively utilized
and to serve purposes and functions, should be designed
only after the organizational pattern and staffing needs
have been established. Most huildings have a life expectancy
of 50 years. Educators should be cautious that the immedi-
ate projection of needs will meet the needs of the organi-
zation three or four decades in the future. Flexibility of
structure must be considered to permit the adapting of

future organization and staffing patterns to new purposes.

Definition of Terms

These terms, as they are used in this study, are to
be interpreted as having the following meanings:

Junior High School - A unit within a school system
housing grades 7, 8 and 9, separated from all other grades
in the school system and having its own principal and staff.

Administrative and Supervisory Function - These
functions carried on in the junior high school related to:
(1) selection and development of personnel, (2) provision
for carrying on and improving the instructional program in
the school other than the direct teaching of pupils, (3)

provision for maintenance and Operation of the school plant,

 

H.

I|4

'hl

“I

..r

 

s. I

 

 

-13-
and (h) necessary details relating to the preceding three
items, including record keeping, scheduling, and so on.
Administrative Organization - Organization as used
in this paper is defined as one of the many functions of
administration. It is that function which attempts to relate
the purposes of an institution and the people who comprise
the working parts of the institution. It is the continuously
developing plan which defines the job to be done and how the
job can be efficiently and effectively accomplished by
people within the social context in which they operate.
Respgnsibilitz - The functions for which the in-

dividual is accountable.

Vertical Organization - Many levels or echelons of
well defined authority relationships through which individuals
must operate.

Flat Organization — Without intervening authority
levels between the building principal and classroom teachers.

Unit Control - A single administrative head respon-
sible for the total operation of an organization or insti-
tution.

multiple Control - More than one administrative head
responsible for the total operation of an organization or
institution.

Span of Control - The total number of individuals
reporting to any one administrator within the administrative

organization of an institution.

Vt.

 

 

 

-14-

Chain of Command - The lines of direct authority
and the staff relationships within the administrative or-
ganization of an institution.

Line Organization - The flow of authority upward
and downward among individuals who are in a hierarchical
relationship to one another.

Staff Organization - Those individuals within the
administrative structure of an institution who are not in
the direct flow of line authority but who perform a service,
or a coordinative or advisory function necessary to the
institution.

Function - An operation or activity performed.

Six-Three-Three Plan - The administrative organiza-
tion of the education program of a school system into an
elementary program of a school of six years exclusive of
kindergarten (grades 1 to 6), a junior high school of three
years (grades 7 to 9), and a senior high school of three
years (grades 10 to 12).

Eight-Four Plan - The administrative organization
of the educational program of a school system into an elemen-
tary school of eight years exclusive of kindergarten (grades
1 to 8), and a secondary school of four years (grades 9 to
12).

School-Within-A-School - The division of a large
school into smaller administrative units or "houses" repre-

senting a cross section of the total school and made up of

 

‘s

 

 

-15-
members of all classes. Each house has its own teaching

staff and administrator.

Scope of the Study

This study attempts to suggest ways of organizing
and staffing a modern junior high school.' The patterns
suggested were developed in seminar discussions by individuals
interested in improving the quality of instruction in this
unit of the school system. The seminar participants were
practitioners in the public schools, professors of school
administration, consultants on education with national repu-
tations for having an interest in the junior high school,
and representatives from the New York State Education De-
partment. The recommendations made represent a consensus
of the deliberations of the six seminar groups. They were
approved by the Committee of the Council for Administrative
leadership.

The scope of this study was defined by the Advisory
Committee of the Council for Administrative Leadership. This
advisory committee indicated particular areas that such a
study should cover. The study, then,is confined to the
answering of the five questions previously recited in the
statement of the problem.

In the first place, it was requested that purposes
of the junior high school should be defined on an operational

basis. It is axiomatic that all organizations must have

 

u.

 

 

-16-
purposes or goals. Without purposes or goals an organization
ceases to exist. To state the purposes of the junior high
school operationally, it was agreed, was to define them by
description of observed properties or behaviors. Many prior
statements of purposes were examined from the literature of
the junior high school. After reviewing and evaluating
these prior statements, the seminar groups arrived at a
consensus concerning purposes of the junior high school,
for the purposes of this study. Defining the purposes of an
organization is a function that administrators, working in
an organization, should perform. Whatever purposes are
stated and agreed upon, they represent the community's
expectations or aspirations for the junior high school.

In the second place, it was agreed that there should
be developed a statement of administrative and supervisory
functions to be performed at the junior high school level.
These functions were to represent the primary activities that
occur in the junior high school deemed necessary to carry
out the school program. These administrative functions
were those that the seminar participants established after
having stated the operational purposes of the junior high
school. Further, these functions were grouped into five
categories :

1. Improving educational opportunity.

2. WOrking with pupils.

3. Obtaining and developing personnel.

-17-

h. Maintaining effective interrelationships with
the community.

5. Providing and maintaining funds and facilities.

Third, the study was to define the administrative
positions needed in the junior high school to perform the
necessary administrative and supervisory functions to meet
its purposes. Authorities agree that the primary purpose
of administration is to insure that the organization accom-
plishes its purposes. The administrative process, in the
main, is concerned with the control and direction of life
in a social organization. Directing life in a junior high
school entails multitudinous activities and relationships
between many different individuals. To fulfill the purposes
operationally of the junior high school that is used as a
model, an adequate administrative and supervisory staff
must be provided. The staff proposed here was based on a
study of the literature, as well as the knowledge gained
from the experiences of the practicing administrators in
the seminar groups.

In the fourth place, the study was to suggest de-
scriptions of the jobs of the recommended administrative
staff positions. Positions were recommended after careful
consideration as to their contributions to the improvement
of instruction for children. The functions were arbitrarily
assigned in the attempt to concentrate related activities

to a.position requiring a full-time person to administer.

 

 

 

-18-r

Functions were designated as: main responsibility, assigned
responsibility, or shared responsibility. These primary
responsibilities were used to develop the job descriptions
of the administrative staff. Consideration was given to
having the administrator specialize in one general area of
administration.

Finally, the study recommends patterns of adminis-
trative organization that relate these positions in such a
way that the necessary functions will be performed and the
stated purposes will be served. Organization is a system
composed of activities of human beings. It is a system be-
cause the activities and efforts of individuals are coordi-
nated. The organizational structure is a pattern of inter-
relating positions, connected by a line of assigned authority.
The seminar groups suggested three different ways of admin-
istratively organizing a junior high school. In each sug-
gested method of organization, the purposes and objectives

of the junior high school will be fulfilled.

How the Study WagLConducted

This study was conducted under the sponsorship of
the Council for Administrative Leadership (CAL), a Federa-
tion of the Organizations of Educational Administrators in
New York State. The "team approach" method was employed.
In addition to the public school administrator groups, the

"team" included State Education Department personnel; the

 

 

4:

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I
I"

 

CI

'a-

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Cooperative Center for Educational Administration at Teachers
College, Columbia University; the New York State Teachers
Association; and individual college professors, particularly
those whose specialty was school administration. CAL was
created to consolidate gains made in educational research,
under an earlier grant from the W. K. Kellogg Foundation,
relative to improving educational administration and particu-
larly instructional improvement. The writer was indeed
fortunate to have had the opportunity to conduct a study
under such insightful leadership, with direction from the
professors from the universities and colleges sponsoring
the study, and the resources they made available to resolve
the question.

Three basic research procedures were followed in
gathering data on which this study is based. First, an
intensive review was undertaken of the post-1900 literature
relative to secondary education, particularly in the junior
high school. All the pertinent writings on the junior high
school were reviewed in the area of: (1) historical develop-
ment, (2) purposes, (3) administrative organization and
staffing, and (A) modern concepts of organization and staff-
ing.

Second, a series of seminar discussions and workshops
were held among groups of professional educators interested
in the problem of organization and staffing of the junior

higfllschool. These groups included: professors of school

 

-20-
administration from institutions of higher learning who had
programs preparing school administrators; professors of
education identified as authorities in the field of the
junior high school; and State Education Department personnel
dealing with the problem of secondary education. In addition,
the groups were comprised of: public school personnel, in-
cluding superintendents of schools, junior high school prin-
cipals, assistant principals, guidance counselors, and other
professional educators having administrative functions deal-
ing with the junior high school.

The school districts of the State of New York were
arbitrarily assigned, by the Council, to institutions of
higher learning participating in the seminar groups. These
seminars were held at the Universities of Buffalo, Rochester,
Syracuse, and New York as well as at New York State College
for Teachers at Albany and Oneonta, New York. A professor
of school administration at each institution was responsible
for notifying local districts of the seminars, as well as
directing the deliberations at each meeting. A series of
four all-day seminars were scheduled by each institution
over a period of four months. The writer served as the
coordinator of the project, being responsible for working
with the discussion groups, assisting those directing the
seminars, providing bibliographies, reports or studies needed,
keepdng minutes, and writing a final report to the sponsor-

ing agency, the Council.

 

u.

 

-21-

At the conclusion of the seminars a third procedure
was used to study organization and staffing of the junior
high school. All the registered junior high schools in New
York State, exclusive of New York City, as listed in Hand-
book No. 2A, published by the New York State Education De-
partment, were asked to complete a questionnaire designed to
determine the amount and kind of administrative staff in
their school. One section of the questionnaire was devoted
to determining who on the administrative staff performed the
#3 functions which had been developed by the seminar groups.
The questionnaire was experimentally tested on a group of
administrators of Nassau County to test the clarity of the
document. Their comments were used to revise the question-
naire and then it was submitted to the 78 registered junior
high schools.

Basic Assumptions and Frame of Reference

1. The junior high school, comprising the seventh,
eighth,and ninth grades, as a separate unit, is the recom-
mended organizational pattern for all secondary education
in New York State, a recommendation made by the New York
State Education Department.

2. The administrative organization and staffing
mutern projected in this study was based on a pupil popula-
tnnxin the unit between 700 and 900 pupils. This school

Population was recommended by the representative of the New

’

to

’0

 

 

 

-22-

Yerk State Education Department and, as stated previously,
this department was one of the sponsoring agencies of the
study.

3. All the administrative functions applicable to
the junior high school are activities that occur in the
school and are the responsibility of the building principal.
Assignment of administrative authority to his professional
associates does not relieve the principal of final responsi-
bility.

A. The primary function of the building principal is
to be responsible for the instructional program and to im-
prove the quality of instruction for the pupils.

5. To permit the building principal to function as
the instructional leader in the size school projected, he
must have some assistance. The assistants should perform
many of the administrative functions. .

6. Effective administrative organization recognizes
that many of the administrative functions necessary to
carry out the purposes of the junior high school can and
should be assigned to other personnel.

7. That all administrative and supervisory positions
recommended for the school must contribute to the betterment
of educational opportunities for the pupil.

8. The organization of the school should be under
mut control. That is, all the individuals working or serv-

ingin.this building should be responsible to the building
Principal.

I

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-23-

9. A quality education program requires that each
junior high school should have on its staff individuals that
are specialists to provide services to teachers and pupils.

10. That the cooperative process or "team approach,"
where staff members participate in the formulating and recom-
mending of policies to the board of education, is superior

to non-democratic systems of Operation.

Limitations of the Study

1. A questionnaire on junior high school staffing
was distributed to the 78 registered junior high schools
in New York State, exclusive of New York City. Usable re-
sponses were received from A0, (50 per cent) of the schools.
The Council agreed that the responses received represented
a fair exploratory sampling of schools, and that they could
be used to determine present staffing and administrative or-
ganization of the junior high school in New York State.

Any study soliciting information on a questionnaire
basis is concerned with the percentage of responses to be
received, as well as the responses representing a universe.
Undoubtedly, schools that had more adequate administrative
«n-clerical staffs were more likely to respond to the ques-
tdons submitted. However, it was not the primary concern
ofthis study, as was stated by the Council in designing
thestudy, to "find out what the present staff is" but rather

thetmsic concern was "what it ought to be." Therefore, the

 

 

 
 

-2g-
sponsoring groups decided that a 50 per cent return was
sufficient to give an indication of what present staffs
were like.

2. The data used were from schools operating on a
6-3-3 pattern of grade arrangement. Replies were received
from other registered junior high schools that were a part
of a 6-6 plan or Kg-9 arrangement. These results were not
included because it was impossible to determine clearly ad-
ministrative responsibilities in the junior high schools.
Likewise, the organizational patterns and staffing recommended
might not be suitable for those schools operating a junior
high school on some other basis than a 6-3-3 Plan. The
staffing ratios recommended, and special services to teachers
and pupils, were developed from a review of earlier liter-
ature and the experiences of the professional educators in
the seminar groups.

3. In reporting on the status study of current staffs
it is possible that some individuals other than administrators
perform certain administrative functions, but the relation-
ship of time devoted to these functions was of minor impor-
tance compared to the work of the individual for the entire
day. It is possible that some administrative personnel
expend much of their energy, talent, and resourcefulness in
clerical or menial duties rather than fulfilling important
administrative functions. One could conclude that if this

be the case, the organization is not adequately fulfilling

L

:sj:;r;-oses, and that a
:r. :eing provided. In

:: assure that adminiS‘.

t. The admini st:

 

sziez'by the seminar ;
:....1 n- - '
reneaent the is
ascheol in this man

:55: 133.03“? 0f schoc.

57.1 L0,.

ween commit

{-2
u‘"‘ V w v

 

 

-25-
its purposes, and that services to teachers and pupils are
not being provided. In other words, good organization will
not assure that administrators perform the tasks they should
perform.

A. The administrative and supervisory staffs recom-
mended by the seminar participants for the junior high
school represent the ideal staff pattern. Staffing a junior
high school in this manner will probably rarely occur in the
great majority of schools. There is great disparity of
wealth between communities in New York State. This will
influence the community in wanting to pay for these services
for teachers and children. Communities differ as to the in-
sight the citizens have in conceiving adequate services for
teachers and their children. Parents differ as to their
values and aspirations for their children. These and many
other local factors will tend to influence the kind and
size of staff of a junior high school.

5. The 43 functions considered to be most important
for the junior high school represented the concensus of
opinion of the seminar participants. Curriculum specialists
and others interested in the instructional program may find
that the functions are too general, or that important areas
have been omitted. The functions represented what the cur-
rent junior high school staffs and the seminar participants
said were important functions. No attempt is made to defend

the functions agreed upon.

 

 

'34

-26..

6. The strictly administrative positions recommended
for the junior high school population, as projected, would
develop a pupil-administrator ratio of approximately 215 to
one. Likewise, guidance personnel were also recommended on
a ratio basis, the optimum being 250 to one. These were
arbitrarily arrived at by a concensus of opinion of the
seminar participants. There are no known data to substanti-

ate these recommendations.

 

 

 

 

 

‘1

'0

‘0

‘l

CHAPTER II
HISTORICAL DEVELOPMENT OF THE JUNIOR HIGH SCHOOL

The junior high school movement, not unlike the
rapid changes that have occurred in our democratic society,
is proceeding at the highest speed since its inception in
the early 1900's. It has had an impact on our total edu-
cational program. It is important to recognize that this
educational unit has attained significant status during the
past half century, and that its educational policies will
have a profound effect on all secondary education during
the years to come. An examination Of its development will
serve to indicate the reasons for its being and its poten-
tialities.

Students Of American educational history differ
in Opinion as to the origin Of our public school system and
the reasons for having an eight-grade elementary school and
a four year high school. Some contend that the idea Of
eight elementary grades was American in origin, while others
insist its origin is definitely Prussian. The eight-grade
idea became the practice in America between 1810 and 1830.
The origin Of the four year high school is just as obscure.
There is no evidence that there was either extensive dis-
<mussion on the number Of grades that were needed for a school,

-27-

 

-23-
or that experimental schools developed to try different types
of grade arrangements.‘_Further, the elementary and secondary
schools began as two separate institutions; and during their
early history little if any attempt was made to bring about
articulation between them.

Eaply History Of Sgcondapy School Organization

TO better understand administrative staffing of
the modern junior high school, it may be helpful to review
briefly the historical changes that have occurred in the
secondary school organizational patterns. The purposes
within the organizational patterns Of the public school
system must meet the needs of its members if it is tO succeed
in its efforts. Public schools are established to fulfill
individual as well as societal needs. When the organiza-
tional pattern Of the school cannot meet these basic needs,
it either becomes Obsolete and is replaced by a new organi-
zation, or it is reorganized to meet the new needs of its
numbers. Secondary school patterns Of organization have
undergone several revisions to reach its present status.
The junior high school today is a part of the school organi-
zational plan because Of the belief that this kind of school
could serve the needs Of people better than any other or-
gudzational pattern Of secondary education.

'The junior high school of today is vastly different

from the secondary schools that served early Colonial America.

 

.2

”1

u‘

‘1‘

\.

-29-

It is different because it is organized and staffed to
mirror the needs of the community that is its locale. This
was also true of the Latin Grammar school, the first secondary
school, established in 1635, described by French.1 The
Latin Grammar School organization stemmed from the British
tradition in education, organized to serve the purposes Of
education on the continent. It is understandable that the
early colonists would establish a school system to serve
purposes that met their greatest felt need. It was their
singular desire that young men be taught to read so that
reading the Bible could take place in every home. In harmony
with this was the need to prepare young men to enter college
to prepare for the ministry. Before it was replaced, this
type Of school organization was successful for over a cen-
tury. According to French, it was replaced because:
". . . the exigencies of frontier life, the weakning Of ties
with the mother country, together with demands for a more
practical secondary education, contributed to make the school
less appealing to the early citizens Of the United States."2
The narrow purposes Of its Operation had doomed it to failure.

The grammar school was gradually replaced by a new

secondary school that Offered a program of more realistic

 

1William Marshall French, America Secondar Edu-
ggtipp (New York: The Odyssey Press, I957), p. 43.

2Ibid., p. 5A.

u-

.1

 

-30.
studies. This new school organization, according to Frazier,3
was called the "Academy." Benjamin Franklin was the first
prominent American to see that America needed a school whose
organization would offer a more practical program of studies.
It was his philosophy that the program would emphasize studies
needed by early Americans for their utilitarian value, such
as mathematics, agriculture, navigation, and chemistry. These
studies would, it was thought, ". . . prepare youth for the
vocational as well as social lives they would lead as well
as prepare some for admission to college.Ӥ The academy
had a great part in influencing secondary school organization.
It contributed the idea Of cO-education, the almost universal
desire for a secondary school education, as well as curriculum
offerings reflecting individual as well as community needs.
While the Academy was successful for nearly a century
in providing an educational program acceptable for the era
of its existance, it did not, as an institution, change to
meet new community demands. It functioned largely as a
private school, usually connected with a religious denomina-
tion. It was mainly tuition-supported and so geographically
located that students attending had to live at school, thus

making attendance more expensive. These were the principle

 

3ceor e Williard Frazier, An Introduction to th Stud
of Education (New York: Harper and Brothers, 1936), pp.

“French, pp._git., p. 63-

III
-

‘l

H

(if

-31-
factors that led tO its replacement as the dominant secondary
school.

A new type Of school Organization emerged in Boston
in 1821, called the English classical school, that could
meet the needs of individuals and the community. Drake has
stated that " . . . this new organization marks the beginning
of the American public high school as we know it today."5
The basic purposes and organization of the classical school
parallelled the academy but had two distinguishing features:
(1) it was the first tax supported secondary school, and (2)
the schools were established in the local community, avail-
able tO all residents. This new organizational pattern was
so enthusiastically received that it soon led to the enact-
ment Of a State Law in.Mmssachusetts, in 1827, which required
the establishment Of a high school Of comparable character
in every town Of more than 500 families. The adoption Of
mandatory laws, however, did not lead to a rapid growth Of
these tax-supported organizations. Community resistance
slowed their increase. This resistance was due to many
factors, such as need for child labor in manufacturing, need
fer farm labor, absence of attendance laws, and the continued
retronage Of the Academy, in addition to strong questioning
of the authority to levy local taxes to support a "free"

‘—

'r 1 1W1IIJ§18I s. grglfih'rho Americgg mgr: School in
rans t pn ng ewoo s, . .: rent ce- a , nc.,

55 p p. 1390

.1
v

0'.

‘S

-32-

secondary school. The court decision in 1874, famous in
educational annals as the "Kalamazoo decision" gave impetus
to communities to establish a school system.whose basic
organizational pattern eventually led to the establishment
of the junior high school.

It is important to point out that compelling and in-
fluential forces in the social, economic, cultural, and
political world were occurring during the nineteenth century
which also affected school organization. Then, as now, these
community, as well as individual, needs influenced the pro-
grams and organization Of schools. During that century,
peoples' lives were influenced by the industrial revolution
which changed America from a predominately rural to an urban
nation. This change affected institutions and organizations,
as well as the value system Of the individual and the tempo
of living. Drake6 has ably identified these forces as: the
destruction of the plantation South, the freeing Of the Negro,
the Opening of the west, the rise Of organized labor, the
freedom Of women, the new conception of childhood, and the
industrialization of America.

By the end of the nineteenth century, the basic
school organization consisted of a tax-supported eight-year

elementary school and a four-year secondary school. Faunce7

g

61bid., pp. 165-195.

7Roland C. Faunce and MOrrel J. Clute, Teaching and
Isarnin n th J ior H School (San Francisco: Wadsworth
Pub is ing 00., 1 , p. 2.

I‘ up

He's
a

 

 

V
-33-
reports that in 1880 there were 800 secondary schools, in

1890 there were 2,526, and by 1900 there were 6,005 high
schools in the United States.

Demands for School Reorganization

The previous section recorded the tremendous growth
in secondary education at the end Of the nineteenth century.
By 1900 there were five times as many children enrolled in
the public school organization as were enrolled in the
academies. This rapid growth Of the high school was accom-
panied by strong expressions of dissatisfactions with the
efficacy of its organizational pattern and purposes. Critics
attacked the school organization from several different points
Of view. College presidents and others in higher education
were critical Of the organization from two points Of view:
(1) the school was failing in what they conceived tO be its
main purpose, to prepare adequately its graduates for college
entrance and (2) the lack Of uniformity of high standards
of academic achievement in the many new schools. Other
critics Of school organization were concerned with the high
drOp-Out rate at the end of the ninth grade, the delay in
starting preparation for college in the ninth grade, the
<mmlication of subject content in the late elementary grades,
as well as the very critical problem of the basic organiza-

tional pattern Of the eight-year elementary program and the

four-year secondary school program.

 

0‘

an

 

Ilu

v-

 

-34.“

The secondary schools were greatly influenced by
two significant events emenating from the college influence.
The first influence was the inauguration Of a program designed
to insure greater uniformity of academic background of the
high school graduate. This step, first instituted by the
University Of Michigan, consisted of certifying students
fer admission following a visit by the Commission Of Examiners
to the high school desiring such certification. According
to Drake,8 this program was rapidly adopted by other colleges
and universities and eventually led to the formation of the
regional accrediting agencies which today are highly respected
and encompass nearly all the institutions Of higher learn-
ing, as well as the secondary schools, Of the United States.
These influences on secondary school organization consisted
of standardizing such areas as: length Of the class periods,
length Of school year, preparation of teachers, requirements
for graduation, school libraries, laboratories, and many
others.

The second event that greatly affected secondary
school organization, leading to the eventual establishment
of the junior high school, was the appointment Of national
study commissions by the then existing National Council on

Education. These study commissions were appointed because

Drake, OE. Cite, P0 231‘.

n‘l

 

._I

E

 

~35:/

of the pressure exerted by the colleges and universities who
sought to reorganize the schools' existing program, as well
as their organizational patterns. According to Douglas,9
President Charles W. Eliot of Harvard, who for two decades
had expressed criticism of the school organization, was the
spearhead Of the dissident group. While President Eliot's
initial concern was expressed because ”the age Of the average
Harvard freshman was steadily increasing,"10 he strongly
advocated a reorganization Of secondary education to "dip
down" to include the last two years of the elementary schools.

By 1900 there were at least four national committees
appointed to study and make recommendations relative to the
organizational pattern of the school system. The first com-
mittee, called the "Committee of Ten," made its formal re-
port in 1893, reporting the current opinion that basically
the secondary school was not adequately preparing pupils
for college.11 According to some individuals, this report
was not pregnant with enlightment as to how to improve sec-

ondary education. Drake,12 in his review Of the Committee

 

9Aubrey A. Douglas, "The Junior High School," The

gifteenth Yearbook Of the National Societ for the Stud-'Of
ducati n Part I I (Bloomington III.: gublic School P55-
I'Tis 153L032” 1916), p. 10. '

1°Ib1d., p. 11.

llnrakfi, OE. Cite, p0 2350

Ibid.

 

I
u.

I”

u

0v

 

‘I

 

 

 

 

 

-36:/
findings, described its efforts by stating that the Committee
"strained like a mountain and gave birth to a mouse." Dur-
ing the two decades from 1890 to 1910, numerous committees
were appointed by the National Education Association to study
and make recommendations on the existing organization Of
the school system. The 1899 Committee on College Entrance
Requirements made the first strong recommendation that the
secondary school be organized to include the seventh and
eighth grades.13 Other committees, later appointed, rein-
forced this consideration for school reorganization.

The first recommendation that the school organized
tion include a separate junior and senior high school was
made by the Committee on Economy Of Time in Education.14
This Committee, after six years study, recommended in 1913,
that public schools be organized as a six-year elementary
school, a three-year junior high school, and a three-year
senior high school. The basic motive of this report was the
continuing desire Of college administrators and Others in
higher education to improve the college preparation function
of the secondary school.

The University Of Chicago did some research on the

topic Of school organization. The outcome of this research

—_¥

13National Education Association, Addresses and Pro-
%§?%%5g,(Washington, D. C.: The Association, , pp.

1[*Faunce, Op. cit., p. 5.

1.1

p:

-h

n...

\/
-37..

indicated, in general, that schools should be organized on

a 6-6 basis. .Many writers and authorities in the field Of
education, such as Briggs,15 Abelson,l6 Dewey,17 and others,
all confirmed that the 8-h plan Of organization was not
suited to the purposes of education at that time. Gruhn
and Douglass summarized the kinds Of dissatisfactions with
this plan Of organization as follows:

1. The increase in age Of freshman entering college
during the last half of the nineteenth century.

2. Recognition Of the considerable amount of dupli-
cation in the instructional program of the eight
year elementary school. .

3. The desire for more thorough preparation of youth
for college through a longer period Of secondary
education.

A. The precedent set by European countries for a
shorter period of elementary education and a
longer one for secondary education.

5. Developments . . . especially in the field Of
psychology Of adolescents which led tO the belief
that age twelve rather than age fourteen was
bes: suited to the beginning Of secondary edu-'
cat on.

6. The attention directed to a large number Of with-
drawals from school during grades seven to nine.

 

l .
5Thomas H. Briggs, The Junior Hi h School (Boston,
Mass.: Houghton Mifflin, CW, 2 . ‘L"_-
16

Joseph Abelson, "A Study of the Junior High School
Eroject," Education, XXXVII (September, 1916), pp. 1-19.

17John Dewey, "Current Problems in Secondary Edu-
cation," School Review, X (February, 1902), pp. 13-28.

v
-33-

7. Recognition of the inadequate training of teachers
in the upper elementary as compared with the high
school grades.

8. Expansion Of extra-curricular activities in the
high school suggesting the desirability of similar
activities for the upper elementary grades.

9. A new conception Of the purpose and nature Of
education.

10. Rapid expansion Of high school enrollments.18
'n’ese valid criticisms Of the existing schools' organizational
patterns did bring about school re-organization. The study
commissions referred to earlier did recommend the establish-
ment of the junior high school as a part of the public school

system organizational pattern.

First Establishment Of the JuniOr High School

The junior high school was being ”born" even before
the Commission recommended the change in school organiza-
tion.) Frazier19 has stated that the junior high school is
the most American part of the present school system because
it has no counterpart in other countries. When and where
the first junior high school was established is quite con-

troversial. As indicated by French20 there is "an educational

 

18WilliamT. Gruhn and Harl R. Douglas, T e Modern
Jun or H S hOOl (New York: The Ronald Press 00., 1956),

PP- “ .
19
Frazier, op. cit., p. 392.

20French, O cit., p. 229.

13.11.31" to the F
its first steam be
is. first airplane
2. on a designs:
1;". chool was to
more valid, a

One of the
3.“. ofa junior 1'.
iii'iidletown, cc
iftior and senic
Sta393 his clai:
1:513 for the 135:
2:10! a three-y.

3:0? department ‘

-39-

parallel" to the Fulton-Finch controversy about the date of
the first steam boat and the Wright-Langley conflict about
the first airplane. It is impossible tO say with certainty
that on a designated day, in any one place, the first junior
high school was formed. Claims, some of them tenuous, and
some more valid, are made for many school districts.

One Of the earliestchtes claimed for the establish-
ment of a junior high school, is that made by Hertz1sr21 for
the Middletown, Connecticut city school district, claiming
a junior and senior department of the high school in 18A9.
He bases his claim On the Middletown city high school cata-
logue for the 1850-51 school year which contained a descrip-
tion Of a three—year junior department and a three-year
senior department. The report does not claim a 6-3-3 plan
of organization, as the modern junior high school is con-
ceived today.

The establishment Of the first junior high school
is Obscure and depends upon the definition that is attached
to the term. The school systems Of Mansfield and Columbus,
(hue; Berkeley and Fresno, California; Kalamazoo, Michigan;
Worcester, Massachusetts; Fort Scott, Kansas; Richmond, Muncie,

and Crawfordsville, Indiana; and Middletown, Connecticut, can

__‘_

21
Silas Hertzler, "The Junior High School in Con-

necticut before 1872," School Review, XXXV (December, 1927).
PP- 751‘7550

~403/ .
all offer claims for having the first junior high school,
with some substantiation in the literaturegz: 23» 24' 25: 26
Whatever the validity of these claims may be, it was not
until the decade 1910-20 that advocacy became prevalent

of the so-called 673’3 organization with separate facilities
to house young adolescents. Practically all authorities on
the history of education, credit Columbus, Ohio, and Berkeley,
California, with this single honor and suggest that they vie
for honors for the claim of "first.” MtClellan,27 however,
states that Berkeley should be given the honor because the
junior high school in Columbus was started as a part of the
grammar school. In both school systems there was a formal
reorganization of the secondary school program, introducing
programs designed to meet the needs of early adolescents and
the needs of adolescents in other developmental stages. In

both schools, the curriculum was reorganized into departmental

 

22Edwin A. Fench, "The First Junior High School,"
School and Society, LXXXVIII (August 28, 1948), pp. 136-137.

23N. C. Heironomus, "Is this the Earliest Known Junior
High School," Clearin House, XIV (May, 19A0), pp. 518-519.

2‘11. N. McClellan, "The Origin of the Junior High
School," California Journal of Second Education, I (Febru-

arYe 1935 9 PP. "' 0

25W’alter S. Monroe (ed.) E c clo die of Educational
Research (New York: MacMillan Co., 1550), pp. EBA-6'53.

26Gertrude Noar "Mbvement Emerges," Educational
Leadershi , XIV (May, 1657), pp. 1.68-1.72. -..-_____-

27Mc01611sn, op. cit., p. 169.

-hl-V/
subjects, and electives courses introduced.

The junior high school in Berkeley, however, was
first called an introductory high school. It was established,
primarily, because of an overcrowding of the then existing
high school having grades 9—12 inclusive. In 1909, McClellan28
states, there was not enough room for all the incoming ninth
graders in the high school, but they could be housed in the
McKinley school which at that time had only seventh and eighth
grades. washington school in the same city was organized on
the same basis.

The many other school systems that also reorganized
their secondary school programs to the 6-3-3 plan of organi-
zation did so primarily on the basis of overcrowded schools.
Bunker'sz9 report to the Board of Education in Berkeley,
however, also gives other reasons for establishing the two
"Introductory high Schools."

Thus, the junior high school was organized out of
atleast two factors: the overcrowding in the four-year
.hidischool, and the realization that early adolescents re-

mured a school organization geared to their developmental
Characteristics .

___

28Ibid., p. 167.

29

Frank F. Bunker, Th Junior Hi School Its Be-
? {min 3 (Washington, D. C.: W. F. Roberts Co., I935), pp.

-h2-
Extent of the Movement

During the last decade some educational authorities
have questioned the efficacy of the junior high school as a
" part of the schoOl 'gs organizational pattern. In New York
City, high school teachers within the last five years recom-
mended to the Superintendent of Schools that the junior
high schools be abolished. The May, 1941., issue of Education
_D_i_gg_§_t_ carried an article On the junior high school which
concluded by stating that while the' contribution to educa-
tional reform had been great, the junior high school will
gradually pass from the picture as a separate school, as
did the English high school and the Academy. It would seem
reasonable then, at this time to examine the extent to
which the junior high school as a unit has developed as a
part of America's public school system.

The junior high school is today enjoying a rapid
rate of growth for the second time in its history. From
the first recognition Of the junior high school as a unit
in 1910, until 1920, there were only 55 such schools in opera-
tion. Most educational historians attribute this slow rate
of growth during the first decade to the fact that the de-
cision made on the nature of the reorganization in most com-
munities was conditioned largely by the availability of exist-
ing Classroom space, and the total number of pupils enrolled

in the school system. In the larger communities there were

-43-

more separately organized junior high schools, whereas in
the smaller communities the six-year secondary school pro-
gram was the most prevalent pattern Of organization.

The first period of the junior high school growth
came shortly after WOrld war I, when all secondary school
education experienced a rather prolific rate of growth. Dur-
ing the decade 1920 to 1930, nearly 8,000 new secondary
schools came into existence, as shown in Table 1. During
this decade following'World‘War I, the enrollment in grades
seven through twelve increased by more than 3,000,000 pupils.
To accommodate this great influx of pupils, many new secondary
schools had to be organized. ’

Local communities provided these new facilities for
its secondary school pupils in quite diverse patterns of
organization. Meet Of the new administrative units, however,
were composed of either a four-or six-year secondary school
Inogram. The majority of districts that were interested in
the reorganization of the secondary school grades chose to
develop a six-year secondary school program rather than a
separate junior high school. This was undoubtedly the re-
mflt of a desire for the development of an articulated
secondary school program beginning with the seventh grade
and continuing through the twelfth. It was their desire to
serve the educational needs of the seventh and eighth grade
Impils in a secondary school rather than in the elementary
school program. The actual diversity of patterns can best

-44-

be described by citing a statistic of the United States
Office of Education;D which, as late as 19A6, in reporting
a study on secondary school education, had to use 17 dis-
tinct organization patterns to present the data.

It should be pointed out that there‘was nothing
contradictory between the organization of a junior high
school as a separate unit and the formation of the six-year
secondary school program. Both types of schools serve the
needs of early adolescents. There was no opposition to the
division of the secondary schools program into two separate
three-year units. This diversity is an affirmation of the
local autonomy of school districts and the decentralized
nature of national and state control of education in the
United States, a condition unknown in education in the rest
of the world.

Table 1 has been constructed to reflect the reor-
ganization of secondary school education that has occurred
thithe United States.” The table shows the sweeping and
continuing changes in the organizational plans of the sec-
ondary school. 0f greatest siglificance are two trends:
away from the traditional high school organization of an 8-1.

plan, and toward some type of a junior high school. From

_._

300. s. Department of Health, Education, and Welfare,
(”Tics of Education, Statistics of Education in the United

W'Statfis“ 1228-32 Serigs Public Secondar-y SchooIs, Number I
as ngton, . .: vernment rint ng ce, 3

p. 20

'i

-45-

TABLE 1.--Number and Types of Secondary Schools in the
United States 1920-1959.*

m

Types 1920 1930 1938 1946 1952 1959

 

Junior high school 55 1842 2372 2653 3227 4996

Junior-Senior high '
schools 828 3287 6203 6360 8591 10130

Senior high schools 22 648 959 4 1312 1760 3040
Traditional high
schools 13421 16460 15523 13797 10168 6024

Total 14326 22237 25057 24122 237h6 24190

 

*Data from U. S. Department of Health, Education,
and Welfare, Office of Education, Statistics of Education
in the United States, 1258-52 Sepigs Public Secondapy;8cbools
umber as ngton, . .: vernment rinting 0 ice,
1961), p. 8.

For this table the following definitiOns from the
United States Office of Education31 were used:

Junior high school-«(predominate 6-3-3 or a 6-2-4 system)
A reorganized school in which the junior high school
grades form a separate division under a separate build-
ing principal. A variety of minor variation--some called
intermediate schools--are currently found.

Senior high school--(either a 6-3-3 or a 6-2-4 system)
A reorganized school in which the last three or four
years are grouped separately.

Junior-Senior high school--(predominately 646 but some
7-5 systems) A reorganized school in which the junior
and senior high school are combined under one principal.

Traditional high school--(8-4 system) A four year school
preceded by an eight year elementary school. No reor-
ganization has ever taken place. It is more prevalent

in the rural areas and, paradoxically, in a few metro-
Politan centers.

31 ids, p. 30

-h6-
present indications, these trends might well be expected
to continue in the years ahead.

In 1920, the 13,421 traditional high schools repre—
sented 93.7 per cent of the total number of 14,326 secondary
schools, enrolling 83.4 per cent of all secondary school
pupils. The 55 junior high schools represented only 0.4 per
cent of the total secondary schools, and the 828 junior-
senior high schools represented only 5.8 per cent of the total
secondary schools. At that time, the 22 senior high schools
had only 0.15 per cent of all secondary school programs.

Thus, at the end of World War I, only 6.3 per cent of the
secondary schools had been reorganized. From 1920 to 1952,
the "depression“ and World War II years saw a rather dramatic
change in the secondary school organizational pattern. The
traditional high school in 1952 represented 42.8 per cent

of the total number of secondary schools, but were enrolling
only 25.2 per cent of all secondary school pupils. For the
first time since school reorganization began to occur, the
traditional four-year high school was not the predominate
pattern of secondary school organization.

The 1959 figures represent the dramatic organizational
Changes that have occurred since World War II. The 6,024
traditional high schools represent only 24.9 per cent of
all the secondary schools in the United States. These
Behools, in 1958-59, enrolled only 17.5 per cent of all
secOliidary school pupils. Among the other kinds of reorganized

-47-
schools, they enrolled more pupils than did the four year-
high school. The combined junior-senior high school enrolled
32 per cent of the pupils: the junior high school enrolled
25 per cent; and the senior high school enrolled 25.8 per
cent of all pupils. For the first time in our educational
history, the traditional high school is not the predominate
pattern of school organization.

It is also significant that the separate junior high
school and the senior high school organizations represent.
33.2 per cent of all types of secondary schools, but enroll
50.5 per cent of all secondary school pupils. Thus, for the
first time it can be said that the majority of secondary
school pupils are enrolled in separate junior and senior
high schools. Or, of greater significance is the fact that
it can be pointed out that in 1959, 82.5 per cent of all .
secondary school pupils were enrolled in some type of a re-
organized secondary school program.

Significant also to educators generally, should be
the fact that in 1959 there were 867 fewer secondary schools
than there were in 1938, but enrolling 3,647,000 more pupils.
This suggests that many of the smaller schools of a few years
tago'are being replaced through the process of consolidation
.and.reorganization into larger schools.

That the junior high school has established itself
as a result of secondary school reorganization cannot be

refuted. It appears quite clear that the earlier Kg-8 school

-h8-
organization is slowly disappearing from the education scene.
The eventual establishment of separate junior and senior
high schools can be expected, if they remain flexible to
meet the needs of the pupil and the society in which they

are located.

CHAPTER III
THE FUNCTION AND PURPOSE OF THE JUNIOR HIGH SCHOOL

In the design of this study, the sponsoring committee
requested that the seminar participants review the liter-
ature on the functions and purposes of the junior high
school. It also requested that the investigation should
answer the question: What are the operational purposes of
the junior high school? These two topics, therefore, are

discussed in this chapter.

The Functions and Purposes as
epgrte in t e terature

It was the consensus of opinion of the college and
university representatives on the advisory committee that
the junior high school as an institution had these char-
acteristics:

1. That it had identical purposes with those estab-
lished for education in general.

2. That it was a unique institution because of the
age of the children it serves.

3. That it was an articulatory unit, both anticipatory
as well as residual.

It is not possible to present all the reactions and

considerations given by the seminar participants to the ideas
-hg-

-50-
and thoughts expressed on purposes. This section purports
to give only an overview of some of the literature considered
to be most representative by the seminar participants. Many
statements were analyzed and evaluated by the seminar partici-
pants but none met the criteria of being stated "operation-
ally." It was therefore necessary to develop from them a
statement of purposes, expressed operationally, in order to
define the administrative and supervisory functions nec-
essary to carry out the purposes of the junior high school
organization.

The literature is convincing that a primary, though
not an only motive of the early junior high school is to
overcome the shortcomings of the traditional public school
organization. The reasons for the earlier organizational
pattern of the 8-4 plan was the subject of a study by Gruhn
and Douglas.1 They concluded from their study that: (a)
there is no evidence that the nature of the physical or
psychological growth of children influenced this organiza-
tion, and (b) the elementary and secondary schools began as
separate organizations at different times in our history,
with little if any attempt to satisfactorily articulate the

two organizations. It would appear then, that little if any

 

1Donald W. Lentz, "History and Development of the
Junior High School," Teachers Colle e Record, Teachers College,
Colmmbia University, EIVII lflzy, I9é6), p. 524.

-51-
conscious planning was employed to develop the early organi-
zational pattern of the public school system.

During the fifty years existence of the junior high
school, many organizations, commissions, school systems,
and individuals have set forth their conceptions of the
goals and purposes of secondary education. While approached
in different ways and presented in varying forms, the same
basic ideas may be found in all of these statements. The
Committee of Ten set the stage and was followed later by
the work of the Commission on Reorganization of Secondary
Education, (1912-1918) which set forth the widely acclaimed
"Cardinal Principles of Education." The criteria established
by the ”Eight Year Study," "The Ten Imperative Needs of Youth,"
and "The Evaluative Criteria," have given additional insight
as to the function or purposes of the secondary school.

From the earliest date, statements of educational
goals, purposes, and objectives have recognized the needs
of students along with the demands of society. In late years,
the results of inquiry into the related disciplines of edu-
cation, sociology, biology, psychology, anthropology, and
medicine have provided additional knowledge which has proven
inwaluable in the formulation of educational goals. As a
.result, the statements of purposes and functions, while
recognizing the basic needs of all children and youth being
serwed, have increasingly been related to the particular needs,

concerns, and problems of each age group found in the several

-52-
administrative units of our public school system.

The junior high school, unlike any other segment of
our public schools organizational pattern, was first estab-
lished to serve definite and well recognized purposes. A
dominant factor has undergirded the successful develOpment
of the junior high school movement since its establishment.
This has been the desire to create an institution for the
express purpose of meeting the needs of the 12-15 age group.
This desire was the original impetus and is a continuing
concern today.

The functions of the early junior high school, as
reported prior to 1920, were summarized by Koos.2 He found
the following purposes mentioned most frequently:

1. Realizing a democratic school system through

a. Retention of pupils

b. Economy of time

0. Recognition of individual differences
d. Exploration and guidance, and

e. Beginning of vocational education.

2. Recognizing the nature of the child at adolescence.

3. Improving the conditions for better teaching.

4. Securing better scholarship.

5. Improving the disciplinary situation and socializ-
ing situation.

This summary by Koos closely parallels the summary of other

educators on the purposes and functions of the junior high

 

2Leonard v. Koos, The Junior Hi h School (Boston,
Mass.: Ginn and Company, I927), pp. 23-102.

-53-
school. It should not be inferred that this new organiza-
tion had the unanimous support of the educational profession)
during its development, or that it exists even today. As
early as 1916, Douglas3 summarized strong objections to the
junior high school, none of these however, were based on
valid proof or research.

During the decade 1920-1930 the statements published
as to functions and purposes changed only slightly from
those stated earlier. A few educators were interested in
the economy of time. One suggested that the junior high
school should offer the beginnings of occupational training
but none mentioned scholarship as an aim. However, most
writers mentioned the importance of individual differences
and the guidance program. The fact that no one seemed con-
cerned about scholarship might have been because the writers
perhaps believed that if the child's program was suited to
his needs, better scholarship would ensue, or that academic
scholarship was related to the concept.of promoting each
child's achievement on the basis of his capacities and in-
terests.

Despite the tremendous popularity of the junior high

school, as judged by the numbers of schools by the 1940's,

 

3Aubrey A. Douglas, "The First Junior High School,"

The Fifteenth Yearbook of the National Societ for the Stud
Education, Fart III (.Bloomington, III.: FuEIic School: P35-

IishingC Co., 1916), p. 20.

 

-5h-
it was said by some educators that it was not meeting its
original function and purposes. Writing in the Education
.Qigggt in 1944, Jones said that "the junior high school has
failed to attain some of its objectives and only partially
attained others.”h He did concede, however, that the junior

high school had influenced the entire school system by:

. . . emphasizing the need for consideration of in-
dividual differences, by fostering a freer, more demo-
cratic atmosphere, and emphasizing the need for a
systematic and organized guidance.5

Jones concluded his statement of appraisal of the junior

high school with this prediction:

. . . the junior high school, while its contributions
to educational reform has been great, will gradually
pass from the picture as a separate school, just as

the English high school and the Academy have passed,
and the four year high school and the four year Liberal
Arts College will pass, each making its contributions,
but each representing a transition to a more effective
institution to be established in the future.6

Perhaps Jones' appraisal of the junior high school
stimulated further study, in l9h8, on the validity of the
original purposes of the new institution. Howell7 surveyed
the opinion of selective junior high school administrators

__

hArthur J. Jones, "Appraising the Junior High School,"
Education Digest, IX (May, 1944), p. 25.

5am:-
61bid., p. 26.

7Clarence E. Howell, "Junior High School, How Valid
are7§ts Original Aims," Clearin House, XXIII (October, 1948),
P0 .

-55-
in more than a hundred cities, asking their opinion on 45
selected purposes from the literature on the junior high
school. These administrators were asked to indicate whether
they thought the purposes to be: as valid as ever, less
valid than before, of no special value, or, no longer valid.
His conclusions from the responses were that "the original
aims and purposes of the junior high school are still valid
and acceptable with only a modicum of change."8 The strongest
reactions, judged by the opinion of the administrators, seem
to be against these aims:

1. To effect economy of time in education.

2. Vocational training for those who must leave early.

3. To retain pupil in school longer.

4. A compulsory club plan.

5. Promotion to the junior high school by age rather
than by progress.

6. Grouping pupils according to their rates of pro-
gress.

The literature of education records many specific
statements as to the reasons for the establishing of the
junior high school. A statement formulated in 1951 seems
to summarize the reasons adequately:

1. The educational program for young adolescents,

which included those between ages of 11 and 12
to ages 15 or 16, needs greater differentiation

than is economically possible in most elementary
schools.

 

8Ibid., p. 76.

-56-

2. Facilities do not need to be so elaborate or
expensive as for later secondary years.

3. Adequate facilities for a suitable junior high
school program are possible only as youngsters
of these grades are drawn from several elementary
schools rather than from a single elementary.

4. The characteristics and needs peculiar to young
adolescents can best be met in a school designed
for them. "

5. The transition from the elementary school to the
upper secondary school can best be made by a dis-
tinctive junior high school, thus abbreviating
the break that traditionally exists between the
eight year elementary school and the four year
secondary school.9

Many authorities in secondary education have made

statements about the purposes and functions of the junior
high school. The central concern of all statements have to
do with providing an educational program which is particularly
designed to meet the needs, interests, and abilities of
children during early adolescent years. Cruhn, a dedicated
educator in the junior high school movement, wrote in 1951
on the philosophy and purposes of the junior high school
after 40 years of existence.10 To quote Gruhn:
The basic philosophy and purposes are with little
modification recognized and accepted as appropriate

today. The changes which one finds are in emphasis
and interpretation rather than to basic points of view.

 

9Harry W. Stauffacher Elizabeth Sand and M. E.
Hermiott, "History and Objectives of the Junior High School "

Bulletin National Association of Secondary School Princi 3,
m5 (December, I951), p. I2.

10William T. Cruhn, "Purposes of the Junior High
School--After Fort Years," California Journal of Education,

XXVII (March, 1952 , p. 129.

 

-57-

Perhaps the most widely accepted concept of the
function and purposes of the junior high school is that of
Gruhn and Douglas. This detailed statement follows.

Function I Integgation

To provide learning experiences in which pupils may
use the skills, attitudes interest, ideals, and under-
standings previously acquired in such a way that they
will become coordinated and integrated into effective
and wholesome pupil behavior.

To provide for all pupils a broad, general and common
education in the basic knowledge and skills which will
lead to wholesome, well integrated behavior, attitudes,
interest, ideals, and understanding.

Function II Exploration

To lead pupils to discover and explore their specialized
interests, aptitudes, and abilities as a basis for
present and future vocational decisions.

To lead pupils to discover and explore their specialized
interest, aptitudes, and abilities as a basis for de-
cisions regarding educational opportunities.

To stimulate pupils and provide opportunities for them
to develop a continually widening range of cultural,
social, civic, avocational, and recreational interests.

Function III Guidance

To assist pupils to make intelligent decisions regard-
ing present educational activities and opportunities
and to prepare them to make future educational decisions.

To assist pupils to make intelligent decisions regard-
ing present vocational opportunities and to prepare
them to make future vocational decisions.

To assist pupils to make satisfactory mental, emotional,
and social adjustments in their growth toward wholesome,
well-adjusted personalities.

To stimulate and prepare pupils to participate as effec-
tively as possible in learning activities, so that they
may reach the maximum development of their personal
powers and qualities.

-53-

Function IV Differentiation

To provide differentiated educational facilities and
opportunities suited to the varying backgrounds, in-
terest, aptitudes, abilities, personalities, and needs
of pupils in order that each pupil may realize most
economically and completely the ultimate aims of
education.

Function V Socialization

 

To provide increasingly for learning experiences designed

to prepare for effective and satisfying participation in

the present complex social order.

To provide increasingly for learning experiences de-

signed to prepare pupils to adjust themselves and con-

tribute to future developments and changes in that

social order.

Function VI Articulation

To provide a gradual transition from pre-adolescent

education to an educational program suited to the needs

and interest of adolescent boys and girls.11

One of the criticisms made of the preceding state-

ment, which is characteristic of criticism of most state-
ments of the functions and purposes of the junior high school,
is that it does not seem to be uniquely appropriate to the
junior high school. Rather, it is said, statements have
been in the main appropriate to all public school education.
Such criticism of these excellent statements is, of course,
recognition of the similarity of function that exists in

all public school education. It was because of this

 

11William T. Gruhn and Harl R. Douglas, The modern
ahnnior Hi School (New York: The Ronald Press, Co., I956),

pp. 3 -32.

1m .v a»)-

-59-
similarity that the seminar groups in this study undertook
to particularize the purposes of the junior high school on

an operational basis.

ngrational PurpgsesI as Defineg by the
Sem nar ggups

Although many of the earlier statements of functions
and purposes could be generally accepted today, as stated
earlier, no single statement or combination of statements
could be adopted fer use by the seminar groups. Many of
the earlier statements though positively stated, tended to
concentrate on criticisms of the existing organizational
strcuture of the secondary school. Later statements were
not within the frame of reference specified by the advisory
committee.

It was not the purpose of the seminar groups to
criticize or to ignore any of the previous statements of
functions and purposes of the junior high school, but rather
to carefully analyze and evaluate a variety of such state-
nmnts and then to interpret them operationally. The most
widely accepted statements were examined from the following

SOUI‘COS:

Thomas H. Briggs, he Junior Hisg School (Boston, Mass.:
Houghton Mi in Co., .

warren W. Coxe, "Trends in the Modern Junior High School,"

Bulletin National Association of Seconda School
PrincipaIs, IIIVIII (AprII, I950), pp. §§§-§§9.

-60-

Harl R. Douglas, "Functions of the Modern Junior High School,"
Bulletin National Association of Seconda School
Princi Is, XXXIV (April, 1955), pp. lI9-127.

William French, "Role of Today's Junior High School," Bulletin,
National Association of Secondary School Principals,

pr 9 5 0 pp. 5’ 0

William T. Cruhn, "Junior High School-~Present Status and
Future Potentialities," Frontiers of Secondary Edu-
cation, Syracuse, N. I.: Syracuse University ress:
Syracuse University School of Education, 1956.

William T. Cruhn, "Purposes of the Junior High School after
Forty Years," California ournal of Education, XXVII
(marCh, 1952). ppe - 3 e

Robert J. Havinghurst, Develo ental Tasks in Education (New
York: Longmans Creen and Company. I952).
Clarence R. Howell, "Junior High: How Valid are its Original

Aimsg" Clearin House, XXVIII (October, 1948), pp.
75-7 .

Leonard R. Koos, "Junior High School Reorganization after

Half a Century," School Review, LXI (October, 1953).
pp. 393'399e

Leonard R. Koos, he Junior High School (Boston, Mass.:
Ginn and Company, .

Elias Liebman, "Function of Today's Junior High School,"
Bulletin National Association of Secondar School
PrincipaIs, IIIV (ApriI, I95I), pp. 151-158.

Rollin MbKeehan, "What are the Administrative Trends in the
Junior High School Organization and Administration,"

Bulletin National Association of Seconda School
PrIncings, If (AprII, I959), pp. I77-I78.
Gertrude Noar, The Junior Hi h School Toda and Tomorrow
(New York: PrentIce fiaII Inc., I959).
University of the State of New York A Desi for Earl
Secondar Education in New orE State (IIBany,.New
York: The Department, I954).

All of the six seminar groups participated as follows

iJlthe development of the statement of purposes that was

-61-
adopted by the advisory committee. At the first meeting of
each group all participants were given copies of quotations
from several of the above stated sources, of the purposes of
the junior high school. The directors of the seminars at
each center had prepared copies (see Appendix A) of such
statements of his own choosing. In one group, the chairman
prepared such a list. Each seminar participant was requested
to study these statements and, if desirous of doing so, to
prepare a list of purposes of his own choosing from these
or from other sources. It was further requested that at
the next meeting of the group a statement would be developed
giving the purposes of the junior high school operationally.
Host of the groups devoteinnre than one session to this
task before they were able to arrive at a consensus or
acceptance of statements of purposes. It was possible for
each seminar group to have a statement of purposes developed
by each other seminar group because of the schedule of
meetings. These various statements were consolidated into
one statement which represented all groups. The statement
of purposes that followe represents the consensus of all
groups, as well as the advisory committee, as being the pur-
‘poses of the junior high school, stated operationally.

1. To help students continue the meaningful develop-
ment of the basic skills and knowledge of our

society. (Such as developed in the language arts,
mathematics, science, and other areas.)

rwul iii-Pet.

2.

4.

5.

6.

7.

8.

9.

10.

ll.

-62..

To help students develop the democratic skills
and attitudes necessary for American citizenship
by appropriate direct experiences.

To help students better to appraise, understand,
accept, and improve themselves as individuals
and their age-mates of both sexes.

To help students gain increasing maturity through
increasing independence from adults and increas-
ing self direction.

To help students develop their understanding and
practice of personal health and hygiene.

To help students develop and appreciate moral
and spiritual values.

To help students with exceptional characteristics,
such as low academic ability, superior academic
ability physical disability and social or emotional
instability.

To help students discover and explore individual
interests, aptitudes, and abilities to facilitate
educational and vocational planning.

To help students make the transition from ele-
mentary school to senior high school through
appgopriate activities, courses, and teaching
met ods.

To help those students who will be terminating
iheii formal education at the junior high school
eve e

To help students develop in a physical school
environment suitable for the educational needs
of children of junior high school age.

Some differentiations should be made between those

purposes which are applicable to all levels of education and

‘those which reflect the true uniqueness of the junior high

school. Thi§ unigueness appgars to lie solelx in the develop-

mental state of the student in early adolescgnce. This is
an age of exploration, rapid social and sexual changes, and

-63-
wide variation in student maturity--truly a transitory
stage in the individual's development from child to adult
behavior. The purposes were stated in such a way as to
attempt to reflect this transition. The implication of these
purposes and their uniqueness in the junior high school or-
ganization and staffing appear to be as follows.

1. An organizational flexibility which may be less
important at the high school level, but conversely, one
which requires a degree of adherence to basic rules and
regulation which is not necessary in the self-contained class-
room of an elementary school.

2. An organization so constructed that it provides
for the pupil a truly gradual transition from relative in-
formality to a more complex and necessarily more rigid system
of operation.

3. Provision for the extended use of the specialist
or teacher with special talent within the organizational
structure.

4. Provision for maintaining close contact with the
child as he moves from the atmosphere of the self-contained
classroom.

5. An organization which recognizes that children
‘will err and which creates an atmosphere in which the young
adolescent will be able to test his emerging self-concept.

Obviously, no paper organization will guarantee
'the implementation of these points. The purposes of any

-64-
organization will not be achieved unless administrators and
teachers accept these purposes. One of the major goals is
to establish the administrative organization and staffing
pattern to meet its purposes. Further, in establishing
the organization, it should be done in such a way that it
will not impede the competent person from operating effec-

tiVBlYe

CHAPTER IV

THE PRESENT STATUS OF ADMINISTRATIVE ORGANIZATION
AND STAFFING OF THE JUNIOR HIGH SCHOOLS
IN THIS STUDY

At its first meeting, the advisory committee ex-
;nessed concern about the current organization and staffing
pattern that existed in the New York State junior high schools.
It was suggested by a member of the committee that at the
first meeting of the seminar groups each participant would
be expected to:

a. Have prepared an organization chart of that
school system. This organization chart should
be detailed to the extent that it should show
all administrative and supervisory positions,
consultant services or services to teachers
and pupils in that school.

b. That a written statement be prepared by the
participants of the strong points in the present
administrative organization.

c. That a written statement he prepared by the par-
ticipants on the weak points in the present

administrative organization.

-65-

-66..

After considerable discussion of this proposal, the

committee agreed not to follow this procedure, for the

fellowing reasons:

a. That the proposal made would be a difficult

b.

Co

d.‘

assignment for the seminar participants to comply
with.

That requiring this material from the participants,
at the first meeting, might be a deterrent to
soliciting participation in the project.

Because many of the advisory committee were doubt-
ful that formal organization charts existed for

a number of school systems, and that probably

some participants in the larger school systems
were not aware of the total staffing pattern of
the school system.

Because some members of the advisory committee

had reservations about asking participants to
criticize the existing organization and staffing
pattern in their school system.

There was some discussion relative to taking a

different approach in securing information about adminis-

trative organization and staffing from the seminar partici-

Pant-,3 . It

was proposed, for example, that the t0pic be

°°°Perat1vely explored with the seminar groups after they

had arrived at the first meeting. After some discussion

Of
that proposal the advisory committee reached a consensus

-67-
that information relative to organizational charts and related
data be requested from the seminar groups as a result of the
seminar meeting.

The various seminar administrators did request,
participants, at the end of the first seminar meeting, to
furnish capies of their organizational charts and the related
data requested by the advisory committee. However, such a
very limited number of participants complied with the re-
quests made at the‘ first two meetings that the seminar ad-
ministrators discontinued making further requests for this
information.

Since cooperation by the seminar participants in
voluntarily providing current information on administrative
organization and staffing had been so unproductive, it was
suggested to the director of the study that a questionnaire
be designed and submitted to the junior high school prin-

C1pals after the seminar meetings had concluded. This pro-

cedure was agreed to by the director and a questionnaire was

develOped to secure this information.

W

A questionnaire (Appendix B) on current junior high
school staffing was distributed to the 78 registered junior
high Schools in New York State, exclusive of New York City,
that were reported in the 1957-58 Handbook # 21.. a publication
of the New York State Education Department. Principal13 0f

-68-

these registered junior high schools were asked to com-

plete the following question relative to professional services
which were sent to their buildings from the office of the
Superintendent of Schools:

D. Some school systems provide regularly scheduled
assistance to school buildings from the central
office, i.e., a reading specialist assigned one
day a week to the junior high school, or share
services among school buildings, i.e., an instru-
mental music teacher who spends half time at the
senior high school and half time at the junior
high school. Do any such personnel serve your
junior high school?

Yes No

 

If you have answered yes, please list these personnel
below, indicating the approximate amount of time
they are assigned to your school building.

No. of days per
week assigned to
Title of Position yppp building

 

 

 

 

 

 

 

 

It was the purpose of this question:

a. To identify all the personnel rendering either
teaching, administrative, or supplementary service
to the junior high school from the central office.

b. To identify accurately and determine the teaching
services from the district administrative offices
to the junior high school that might reflect more

exact information as to the true ratio of

-69-
administrators, teachers, and other professional
personnel providing services to pupils or teachers.

c. To determine more adequately administrative
services from the district office that might yield
more information as to the true administraive-
pupil ratios in the junior high school.)

A second question was asked on the questionnaire, as

follows :

E. Exclusive of those personnel mentioned in (d)
above, list as indicated below the professional
ersonnel who work full or part time in this
uilding. If any of your personnel do not seem
to fit the categories used, change the categories
in any way you feel necessary to make your total
staff most clear.

The respondents were asked to list professional per-
sonnel, by categories, as to the number of such individuals
in that building, whether they were full-time persons, and
if only part-time, the per cent of their time they devoted
to that particular. activity in that building. The following
categories with possible job titles for positions were

liSted:
Full Time Part Time
1 No. in Check % Devoted to
- Wire 13.1.0121. M Activity in this Bldg.
3P531ncipal ____ ____ ___. ___p '

ASs't. Principal

C<>ordinator of
Student Activities
hers (specify)

\ ——--.—

\
\

¥

 

trthh
e 1

a ‘nw;.~_q--x

“‘5'. —

Full Time Part Time
No. in Check % Devoted to
2. Guidance Bldg. Yes No Activity in this Bldg.
Guidance Counselors __
Psychologists __

Others (specify)

 

iv —

 

 

3e Health

School Nurse
Dental Hygienist
Physician

Others (specify)

 

 

H! H!
I
l

L

4. Consultants or-
Helping Teachers

Reading
Librarian
Others (specify)

 

HHIH
mm:
mum
mm:

 

5. Demrtmept Chairmen

English

Social Studies
Seience
Mathematics
PhYsical Education
M<1><zlern Language
Others (specify)

 

 

 

-71-

It was the purpose of the preceeding question to

identify all the types and kinds of services provided to

administrators, teachers, or pupils in the junior high school

relative to:

l.

2.

3.

4.
5.

6.

Of
p113 3 We re

980611.189:

The number and kinds of services used in the ad-
ministration of the school's program and activities
to meet its objectives or purposes.

The title of positions in the junior high school
that were primarily devoted to the improvement

of the quality of the instructional program and
who assist teachers in the improvement of the
instructional program.

Remedial or diagnostic programs for pupils that
would increase their efficiency or accuracy in
learning.

The kinds of supplementary or specialized services
to teachers and pupils in the instructional program.
Programs of systematic assistance to pupils to
help them assess their abilities and liabilities.
The resources of the school devoted to promoting
desirable knowledge, habits, and attitudes about
health for purposes of improving the health con-
ditions of pupils.

the 78 questionnaires distributed, 4O useable re-

used in this study. Many replies were not useable

. -72-.
1. Incomplete data, such as failure of the respon-

dent to report the pupil enrollment, the number of classroom

teachers, and other ommissions.
2. The junior high school was a part of a combination

junior-senior high school combination, with the joint use
of staff that could not be distinguished as rendering exclu-

sive service or fractional services to the junior high

80h001e
3. Due to current overcrowding of total school popu-

lation, the junior high school for the year was not operating

grades seven, eight, and nine in that building.

A Brief Description of the Junior High Schools

The State Education Department of the University

of the State of New York, each year publishes an annual
This statistical study

Statistical Report of the Department.

is compiled from the various kinds of reports that school
The

officials must make to the Commissioner of Education.
following brief descriptions of the junior high schools in
this study were abstracted from the Fifty-Fifth Annual Sta-

tistical Report, Part II, published in January, 1959. by

the Department .

ginéflflbieg in the Study
Exclusive of New York City, New York State has 57

The 40 junior high schools used represent 17 of

countIGSe
t
11°39 counties. New York State, not unlike the State of

¥
—

 

 

-73-
Michigan, has concentrations of population in and near metro-

politan areas and around its cities, but also has regions

that are sparsely populated. There are a number of school

districts in the state that retain the one-teacher school.
Some counties in New York State have school districts with

so few pupils that they cannot maintain a separate junior

high school organization. Hamilton County, for example,

in the entire county in the fall of 1958, had only 1,005
pupils enrolled from the kindergarten through the twelfth

The largest school district in Hamilton County had
In

grade 0
318 pupils, kindergarten through the twelfth grade.

the entire county, only 370 pupils were enrolled in the

seventh through the twelfth grades. The schools within the

gooumty, or the entire population of the secondary school
grades, could hardly be expected to organize a junior high
school with this pupil population.

An Assistant Commissioner of Education of the State
Of New York, also a member of the Advisory Committee of this
9ttzciy, suggested to the Committee that a junior high school
Population of 700 pupils be the minimum size school to be
considered. This size school enrollment represents, through
the State financial aid program to schools, the maximum
fineIncial aid a school district could receive, with a minimum
eurollment. To have 700 pupils in the junior high school,
a School district would need to have approximately 3,000
Pupils in the kindergarten through twelfth grades, assuming

-74-
that 230 kindergarten enrollees continue through the last
year of high school. Reviewing the County school enrollments
for the 1958-59 school year by individual districts, 27
counties of the state currently did not have a school district
with more than 2,800 pupils enrolled in the kindergarten
through the twelfth grade.

Four counties of the state had more than 100,000
pupils enrolled in all grades: Erie, Nassau, Suffolk and
westchester. The combined enrollments of these counties was
nearly 700,000 pupils in all grades. Nassau County had
nearly 280,000 of these pupils. The counties of Nassau and
Suffolk on Long Island and Westchester are a part of the
metropolitan New York area, whereas Erie County, in the ex-
treme western part of the state includes the Buffalo metro-
politan area. The school populations in the kindergarten
through the twelfth grades in these counties represented
42.3 per cent of the entire state school population, exclu-
sive of New York City. Within these counties are 32.5 per
cent of the junior high schools in this study. The other
schools in this study are located in 14 counties and only
'thzee of the counties were represented by more than one
junior high school. These three counties represented the
city'areas of Binghamton, Niagara Falls and Schenectady,
with the first two named areas being represented by two
different school districts, and the latter by three different

school districts.

-75-
Geoggaphic Location of the Counties

The 17 counties in which these junior high schools
are located are rather widely dispersed over the entire geo-
graphical area of New York State. The extreme eastern
counties are those in the New York metropolitan area: Nassau,
Suffolk, and westchester. The extreme western counties were
Niagara and Erie, representing the Buffalo metropolitan area.
The northwestern section, near the St. Lawrence River, in-
cluded Jefferson County. The northeastern section of the
state, in the Adirondack.Mountain area, with the sparsity
of population, had no junior high schools in the study. This
area contains Clinton, Essex, and Franklin counties, which
have relatively small school districts. Warren County was
the most northern county on the eastern side of the state
in the study.

The central area of the state had Albany, Sechnectady,
Otsego, and Oneida counties in the study; the south-central

tier of counties had only Broome County.

Total Pupil Enrollment in the School Districts
The smallest school district with a junior high

school in this study had a total enrollment of 1,599 pupils
in the kindergarten through the ninth grade. This school
districtin westchester County did not operate a senior high
school program. It is a part of what is called a Supervisory
District in New York State. In Michigan, this could be

-76-
likened to a small school district, without its own super-
intendent of school, who has as its titular head, the county
superintendent of schools. The school district in the study
with the largest total school enrollment was also in West-
chester County. This district is classified as a City
school district, with 24,931 pupils enrolled in the kinder-
garten through the twelfth grades.

The median district in the study had 6,428 pupils
enrolled in all grades. Nine of the districts had more than
10,000 pupils in attendance. Only four of the districts
had less than 3,000 pupils enrolled in all grades. The
only district with less than 2,000 pupils enrolled was the
smallest school in the study. The largest district in the
study, previously discussed, was the only district exceed-
ing 20,000 pupils.

Taxable Wealth, Full ValueI per Weighted Pupil
The full value of property in a New York State school

district is ascertained by taking the assessed value of the
property within the district on the last assessment and
dividing it by a ratio (determined by the State Board of
Equalization and Assessment) which such assessed value bears
to the actual value of such property. New York State has
developed a method of counting pupils which provides weight-
ing of pupils in kindergarten, in grades 1-6, and in grades
‘7-12. Pupils attending kindergarten are weighted at 0.5;

-77-
pupils in grades 1-6 are weighted at 1.0; and pupils
attending grades 7-12 are weighted at 1.25.

The district with the highest taxable wealth per
pupil, $36,308, was in east-central New York, having 13,000
pupils. The lowest taxable wealth per pupil, $15,177. occurred
in a school district enrolling 2,300 pupils, located in
central New York. The median taxable wealth per pupil was
$21,669. Four districts in the study had taxable wealth per
child that exceeded $30,000, and three of the four districts
were in the metropolitan New York City area. Only one school
district had less than $15,000 taxable wealth per pupil.

Tax Rates ppr Thousand Dollar-~Full Value

The tax rates per 31,000 full value in these 40
junior high schools ranged from a low rate of $9.39 to a
high of $30.14. The median rate was $16.04. Only six
districts in the study had rates that exceeded $20 per
81,000 full value, and these full values ranged from a high
of $32,063 to a low of $15,841 per pupil. Five of these
six districts were located in the metropolitan New York City
area. The highest tax rate of $30.14 occurred in a Long
Island school district having the highest per capita net
expenditure. The taxable wealth per pupil was $19,769.
The lowest tax rate of $9.38 occurred in a school district
whose taxable wealth per pupil was $15,177 and whose A
valuation was the second lowest per pupil in the study. Two

-73-
schools had tax rates of less than $10 per 31,000 of full
value. The second lowest rate of $9.65 occurred in the
school district with the highest full valuation per pupil.
The two schools with the lowest rates are in Rensselere and

Albany Counties, east-central New York.

Per Capita Current Egpenditure per Pupil

Current expenditures in New York State are defined
as all expenditures for current operation of the school
district such as salaries, operation of the plant, and
supplies. They do not include payment for debt services or
expenditures for capital outlay. The current expenditures
for these schools ranged from a low of $393 per pupil to a
high of $764 per pupil. The median expenditure was $503.

New York State distributes its financial aid to
school districts on a rather complicated formula. This
formula is based on the ability of a school district to pro-
vide a minimum educational program for its pupils. The
formula is a financial reimbursement to assure each child
in the state a minimum educational opportunity. As defined
by the Laws of 1956 and amended in 1958, this foundation pro-
gram amounts to a guarantee of $356 per weighted pupil for
every child in the State of New York. The lowest expenditure
per pupil by a school district in this study was $393, or
(about 10 per cent above the minimum program. This occurred

in a westchester County school whose full value was $23,123

-79-
per pupil, nearly $2,000 above the median valuation of
schools in this study. This is a city school district that
is not fiscally independent, with a budget which must be
approved, taxes collected, and remitted to the school dis-
trict by the city council.

In these junior high schools, six school districts
expended more than $600 per pupil annually; two of these ex-
ceeded 3700 expenditures per pupil. Only two schools spent
less than $400 annually per pupil.

Teachers ppr Thousand Pupils

Teachers are defined as school personnel who provide
instruction in various subjects as their primary responsi-
bility. Included as "teachers" are principals, supervisors,
and teachers, but not superintendents, business managers,
nurses, and other specialized personnel. The reader should
know that four school districts in this study do not operate
educational programs below the seventh grade. That is, they
are called central school districts, which are secondary
school districts superimposed over several different ele-
‘mentary or common school districts which, for whatever rea-
sons there may be, do not have a secondary school program.

The teachers per 1,000 pupils in all districts ranged
from a high of 61 to a low of 40. The schools havingthese
extreme ranges in staffing are in metrOpolitan areas, the

highest in the New York City area, the lowest in the Buffalo

-30-
area. The school with the largest number of teachers per
1,000 pupils is a central school district and does not
operate an elementary school. This is the school district
that has the largest number of administrative personnel,
and the maximum time devoted to department chairmen.

I The greatest number of teachers per 1,000 pupils
operating kindergarten through the twelfth grades was 57.
This school spent $581 annually per pupil, had a full value
of $24,702 per pupil and a tax rate of $18.51 per 81,000
full value. This school had a teacher-pupil ratio of l :
19.2.

The school with the fewest teachers per 1,000 pupils
(40) spent the least amount of money annually (3393) per
pupil. This was the school district previously mentioned
as having its budget fixed by the City Council. While the
pupil-teacher ratio was 21.6 : 1 for the junior high school,
this was still below the median for all schools. The total
staff ratio to pupils, however, was among the highest of all
schools.

The median district in this study had 47 teachers
per 1,000 pupils. This cannot, however, be compared to the
total staff ratios used in this study, because this study
used all personnel, such as nurses, librarian, guidance

counselors, and others, whereas the state excludes these

positions in its calculations.

 

 

-81..

Enrollmenps in the Junior High School
The 40 schools ranged in pupil population from a

low of 270 to a high of 2,202. The median population of
these junior high schools was 750. Thirteen schools in the
study had less than 600 pupils. These schools ranged in
enrollment from 270 pupils to 583. The median for this
group was 533 pupils. Six of the 13 schools had less than
500 pupils enrolled and of those six, four had less than 400
pupils. y I I
Fourteen schools had enrollments between 600 and

; 900. The median for this group was 750; gthey ranged in size
A from 630 to 900 pupils? Five Of these schools had less than
700 pupils, and only four had more than 800. ‘, i. ' f

 ;: In schools that had more than 900 pupils, there 8
were 13 in the group and they ranged in enrollment from 950
to 2, 202. The median enrollment for this group was 1,110
pupils. The enrollments of two Long Island schools exceeded
1,500. These school districts had only one junior high
school within the district.

Administrative Positions

 

The 40 respondents to the questionnaire identified
'the titles of positions of individuals who were regularly
assigned to that building, perfoming administrative services
as shown in Table 2, which follows.

-82..

TABLE 2.--Title and Number of Administrative Positions in
40 New York State Junior High Schools.

m
Number of Positions

 

Title of Positions me art ime ota
Principal 38 2 #0
Assistant principal 1h 6 20
Coordinator of pupil activities 0 8 8
Assistant to the principal 0 1 1
Administrative intern l 0 l
Coordinator of pupil-personnel

services 0 l 1
Director of physical education 1 0 1
Administrative assistant 1 l 2

Total 55 19 7h

Bui din Princ ls

All of the schools in this study have the position
of building principal. Only two of the positions were
part-time. The smallest school in this study (270 pupils)
had a one half—time principal who was also in charge of a
small elementary school. The other part-time position
ocmurred in a school of 560 pupils where the principal de-
‘voted one-half of his time to another service in the school
district. The smallest school with a full-time building
principal had 31.0 pupils.

-33-

The ratio of pupils to building principals ranged
from 3&0 : 1 to 2,202 : 1. The median ratio on this position
was slightly higher than the median size of school population
because of the two part-time building principals. The median
ratio for building principals to pupils was 1 : 753. This
frequency distribution is shown in Table 3, in the accompany-
ing text.

Assistant Building Administrators

The building principals in 23 of these #0 junior
high schools reported the existance of assistant building
administrators. In Table A it is shown that these positions
had several different titles. The smallest school with an
assistant administrator, had 530 pupils enrolled, in which
the individual devoted only one-third of full time to ad-
ministrative activities. A school enrolling 580 pupils was
the smallest school with a full-time assistant administra-
tive position. Only one school in the study had as many as
three or more assistant administrator positions, and in
this school, two of the positions were part-time. This
school, of 1,300 pupils, had the equivalent of 3.25 full-time
building administrators. This was the largest number of
administrators in any one school building. Only three other
schools had as many as two full-time assistant administrators.
The majority of schools which had assistant administrators,
reported one full-time administrator.

 

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-34-
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-86-

Eleven of the 13 schools with enrollments of over
900 pupils had assistant administrators, only two of whom
were less than full-time. The schools that enrolled from
600 to 900 pupils, in nine of the IA schools, had full—time
assistant administrators. The 13 schools which had less
than 600 pupils had four assistant administrators. Three of
the four positions were part-time.

Assistant Pringipgl
The position of assistant principal was found in

19 of the A0 schools, and 1A of these position were full-
time. The largest school in the study, with 2,202 pupils,
had two positions of assistant principal, the only school
with more than one position with that title. The smallest
school with an assistant principal had 580 pupils. This
position was most often found in the schools enrolling 900
or more pupils. Nine of the 13 schools of this size had
this position. One of the schools with 740 pupils had the
position of assistant principal who devoted #0 per cent of
full-time to this position, the least amount of time devoted
to this position by a person having this title.

Table 5 indicates the frequency distribution by
school enrollments for this position. The ratios range from
a low of 583 : 1, to a high of 1,850 : l. The median ratio
is 1,05A : l.

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-33-
Coordinator of Pupil Activities

Eight principals reported that the position called
Coordinator of Pupil Activities existed in their schools, and
in every instance it was a part-time position. Two of the
schools reported that individuals had the title of this
position, but did not indicate that they were granted time
from teaching activities to perform this assignment. The
amount of time devoted to this administrative activity by
individuals with this titled position ranged from one-half
day a week to a maximum of 60 per cent of a full-time posi-
tion. The smallest school with such a position enrolled
535 pupils. The position in this school was for the equiva-
lent of .35 of a full-time person. The largest school with
a coordinator of pupil activities enrolled 1,100 pupils.

Only two principals in schools with less than 750 pupils
reported having this administrative position.

In three of the schools with this position, it was
the only other administrative position, besides that of the
building principal. This occurred in the smallest school
vdth the position, discussed previously. It also occurred
in a school having 650 pupils, where the individual devoted
the equivalent of 20 per cent of full time to this activity,
and in a school of 950 pupils where the individual spent 50
per cent of his time administering pupil activities. Since
this was a part-time position, the pupil administrative ratio
was relatively high. The ratio, as indicated in Table 6,

‘v‘

-39-

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-90-
ranged from a low of 1,500 : l to a high of over 10,000 : l.
The median ratio for this position was 3,400 : 1.

Assistant to the Principal
Only one position titled Assistant to the Principal

was reported as an administrative position among the junior
high schools. The position was a part-time one in a school
of 580 pupils, and was the only assistant administrative
position in that school. The individual spent 30 per cent
of his time in the position.

Director of Physical Education
The only assistant administrative position in one

school of 1,1A0 pupils was the Director of Physical Edu-
cation. It was interesting to observe that this school, as
compared to other schools of like enrollment, provided the
least guidance and psychological services to pupils, the
least health services, and the least general administrative

services.

Admigistrative Intern
The administrative intern position was a third full-

time administrative position in a school of 1,350 pupils.
The school was generally well staffed with teachers as well

as service personnel to teachers and pupils.

Coordinator of Pupil-Personnel Services
The school with the position of Coordinator of

 

-91-

Pupil-Personnel services had 980 pupils. This was the only
assistant administrative position in the school and it

was not a full-time responsibility. The individual de-

voted 80 per cent of full time to this position. In this
school there were four full-time persons in the pupil-
personnel work, three full-time guidance and a full-time
nurse. It might be reasonable to include in this category

a reading specialist who visited the school one-half day

a week. The data did not indicate that psychological services

were available to the school.

Administrative Assistant

School principals reported that in two of the schools,
positions with the title of Administrative Assistant were on
their administrative staff, only one of which was a full-
time position. This full-time position was in a school en-
rolling 1,500 pupils and was the third full-time administra-
tive position in this school. A school of 1,300 pupils had
this position on a part-time basis but it also had a full-
time assistant principal and a one half-time coordinator of
pupil activities. The individual in this part-time position
spent 75 per cent of his time in this capacity.

Relation of Total to Number of Pupils
Table 7 was constructed to indicate the relationship

0f total administrative staff to the pupil enrollment in

these LO junior high schools. The ratios of total administrative

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-92-
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-93-

staff to pupils ranged from a low of 292 : 1 to 1,125 : 1.
The lowest ratio occurred in a school of 580 pupils that,
in addition to the building principal, had a full time
assistant principal. The highest ratio was in a school of
562 pupils but it only had a half-time building principal.
The median administrator pupil ratio in these A0 schools
was 529 : 1.

Guidance Services

 

School principals reported four different kinds of
guidance services available to their pupils. One school
reported the services of a psychometrist, available 10 per
cent of full time to that school. Five principals reported
that a social worker was available "on call," not in any
case regularly assigned to their building. These two posi-
tions of the psychometrist and social worker cannot be
treated statistically from the nature of the data provided.
They are mentioned here as a kind of service that is avail-
able in some of the junior high schools. The psychometrist
was available to a junior high school of 850 pupils. The
schools with social workers were in the majority of the
cases, schools within a fairly large city school system.
Two of the schools, however, shared this service from a
county cooperative service board.

With only one exception, all schools had guidance

Counselors on their staff. Psychological services were

 

-9h-
provided in approximately one-third of the schools with per-

sonnel regularly assigned to the school.

Guidance Counselors

 

In this study, one school enrolling 6A0 pupils was
the only one not having guidance services available to its
pupils. The amount of personnel services in this area varied
greatly among these schools. The least amount of guidance
service was in a school of 360 pupils which had a counselor
available only 10 per cent of full time. The largest school
had seven full-time guidance counselors. In only four of
the schools did they have less than a full-time counselor.
These schools ranged in size from 270 to 6A0 pupils, and
counselors spent from 10 to 80 per cent of full-time as
counselors.

Thirteen of the schools had a single full-time
guidance counselor. The smallest school with such a position
had 3L0 pupils. The largest school with only one counselor
had 850 pupils. Ten of these 13 schools with one counselor
had 500 or more pupils enrolled. A total of eight schools
had two counselors on their staffs full time.' These schools
ranged in enrollment from A90 to 1,150. Seven of the eight
schools had more than 750 pupils. Eight of the schools had
tvhree full-time counselors on their staffs. These schools
were larger, enrolling from 7A0 to 1,500 pupils. Seven of
the eight schools had more than 900 pupils. Only one school

-95-

had four counselors, that was a school of 1,300 pupils.
Part-time positions of counselors rarely occurred in the
schools where the school had a full-time counselor. Only
two such positions were reported, both in schools with less
than 700 pupils. In schools with more than 700 pupils, all
counselor positions were on a full-thme'basis.

Table 8 contains the frequency distribution of the
guidance pupil ratios. These ratios ranged from a low of
2h5 : 1 to over 3600 : 1. This high ratio was an extreme
case because the school had only a part-time counselor. The
next high ratio was 850 : l. The median ratio for guidance
counselors to pupils was 1 : ASO.

Sghopl szchologist
Fourteen of the LO schools had psychological services

available to pupils from personnel assigned to the school on
a regular basis. Only one school had a full-time psychologist
on the staff and this occurred in the largest school in the
study, with two such positions.

The predominate pattern of this part-time service
was for individuals to spend approximately 10 per cent of
their time in the junior high school. In only two schools
was a psychologist available for as much as 50 per cent of
the time to the pupils in the school. In both instances
the schools enrolled more than 1,000 pupils.

-96-

.ummpm no smumonn oonOst on one Hoosom moon

OOMN OOHN OOOH OOOH OOmH OOnH OOHH OOO OOO OOm OOm OOH
CCNN OCCN CCmH OOOH CosH CONH OOOH Cow COO CC: CON C mucoaHHOhnm

 

CO H H m m 5 CH O 4 Hmuoa

OOIOm
OOHnCCH

OOHICmH
H H OONICCN
OONsCmN
OamuCOm
OOmnOmm

H N H Oeenooe
H OOsqus

OsmcCCm
O OOmqum
OsOnCCO

OOOaCmO
OONnCCu
OONIOmN
O: uCCw
H m3H 0mm

H
H
r-‘Ir-i
N
Hr-I
N

"\H FIN HI‘d’nd' 02% N
H

HH HHH HH
F1

 

Hmooa mOHamm

 

 

..m...fi._oaHHo.H
now an mHoonom anm powwow mumpm xhow 3oz 04 2% momumm nOHomcsoc ooswwijanQJmsu.m mqm<h

-97-

Principals in nine schools stated that psychological
services were available but to them on an "on call," as
needed, basis. There was no discernible pattern of providing
psychological services on a size-of-school basis. A majority
of schools had psychological services available in a variety
of different patterns.

Table 9 indicates the ranges of ratios of this serv-
ice, from 1,100 : l to over 11.000 : 1. The median ratio was

h,250 : 1.
Health Services

All of the schools had the services of a school
nurse and school physician. In all the schools, however,
the school physician was available on what the principals
terms an "on call" basis, that is,he was not regularly
assigned to the school but he would respond to the need for
services when called. Because the school physician had this
kind of a position, no statistical studies could be made on
a ratio basis.

All of the schools had the services of a school
nurse, either regularly assigned to their building or on a
shared basis with another school in their district. The
position of dental hygienist occurred less frequently than

tihat of the school nurse.

-93-

Nr-lt-ir-i
r-I

 

OOMN OOHN OOOH OOOH OOmH OOMH OOHH OOO OOO OOm OOm OOH
CONN OCCN OOOH OOOH OOOH CONH CCOH CCw CCO COO CON O

OH H H N m N m N

r-lr-l
v-I
,4

H H
d H H N

Hmooa

mpeoaHHowsm

aapoa

OsmuCCm
OOOaOmb

O4NH|CCCH
OOeHquNH
OJNHICCOH
OOOHqubH

OJNNaOCCN

OOeNquNN
OOONICCmN
OOONnCnHN
OJNmICCCm
OOemquNm

mesm-00mm
oomm-0nsm
as~s-ooos
mmeeuonme
meme-ooms
Smash-o“.
mesm-0m~m
seem-00mn
aamm-0msm
mafia coco

moapmm

.macoaHH0hom he mHoonom anm LOHdab oompm Hun» 3oz CO :« mOHamm anMOHOACAnmaNmeQIa.Q mgm<a

-99-

School Nurse
All the pupils in these junior high schools had

nursing services available to them. In four of the A0 schols,
the school nurse was assigned from the district office and

to that building on a part-time basis. Each nurse spent
from.50 to 80 per cent of full-time in the junior high
schools.

In 36 of the schools the principals reported a nurse
assigned to their building on a regularly scheduled basis;
in 17 cases it was on a part-time basis. Nineteen schools
had a full-time nurse and only one school had more than one
full-time nurse. The largest school in the study had two
full-time nurses on duty. The smallest school with a full-
time nurse had A30 pupils.

Including the nurses assigned on a part-time basis
from the district office, 21 schools had part-time nurses.
In only one school was a part-time nurse assigned for only
10 per cent of full time. Eight of the principals reported
‘that their part-time nurse spent from 70 to 90 per cent of
,full time in their building. No distinct pattern could be
«ascertained of assigning part-time nurses by size of school
<Dr amount of time spent in the building. These part-time
=3ervices ranged from 10 to 90 per cent of full time in the

“Iarious buildings.
Table 10 was developed to indicate the frequency

.ooaeuo nonhumae acne .av

 

OOMN OOHN OOOH OOOH OOmH OOmH OOHH OOO OOO OOm OOm OOH
CCNN OCCN OOOH OOOH OOOH CONH CCCH COO CCO COO CCN C mucoEHHounu

 

C: H H m m 5 CH O J Hmpos

OONICON
OOthCm
OO¢|CC¢

NA<O OOmaoom
N OOOICOO

H OONICCN
ommaoom

H OOOnCCO

H
N

N « OOCHICCCH
H

H
H

Flt-{FIN

H . N x O lav amaa-ooaa
H OONHICCNH

m H mama-ooma

HA<V H OOHHICOHH

H mOmHsoomH
OOOHnooOH

H H OOhHaOONH

OOmHIOOwH

H OOOHaCCmH

OOCNIOCON
H OOHNcOCHN
OONNIOONN
OOMNIOOMN
N H H m:Hnm CCON

~100-
H H N Hmdem JNNOM

Hmaoa mOHpmm

 

 

 

 

.mpoofiHHOhom an nHoonom nwdm howcso spoon HAOH 302.9%.afi mcwuwm aw£QWJ5 Omfifi2f~wqgmra.gfi.mqm<&

 

~101-
distribution of ratios of pupils to school nurses. The
median ratio for this service was 1,055 : l. The range is
from A26 : l to A,89O : 1.

Dental Hygienist
The position of dental hygienist in the schools that

had this service was, in most instances, on a part-time
assignment. Only one school had this service on a full-
time basis. Twenty-one of the A0 schools indicated that a
person with this position was on their staff.

The 20 schools that had a part-time dental hygienist
reported that the individuals spent from 10 to 60 per cent
of full time performing this service. Four schools had a
person for only 10 per cent of the time, whereas two schools
had a person for 60 per cent of full time. Between these '
ranges the other 1A schools had no predominate pattern of
part-time service.

It is interesting to note that the one school that
had the only full-time dental hygienist for 750 pupils had
the highest per capita net expenditure per pupil of any
school of the study. This is the school that, for example,
had two full-time department chairmen, one in music and one
in physical education. It is the same school that had one
of the highest ratios for pupil reading specialist position,
and had no speech correction program.

Since this position was predominately a part-time

service, the pupil-dental hygienist ratios were rather high.

 

-102-
The median ratio for this service to pupils was 1.: 2,500.
The ratios ranged from 754 z 1 to 13,000 : 1. Table 11
indicates the ratio by school enrollment to pupils for this

service.

Department Qhairmen
Twenty-two of the A0 schools were organized with

department chairman. In 15 or 67 per cent of these cases,
the chairmen were released from part or all of teaching ac-
tivities to administer this function. The pupil-adminis-
trator ratio in this category ranged from a low of 237 : l
to a high of over 10,000 : 1. It is interesting to note
that the school with the lowest department chairmen ratio
(237 : 1) also had the lowest ratio (364 : l) of total
administrators in the study. This low ratio of department
chairmen occurred in a school of 1,300 pupils. It had 11
department chairmen each of whom spent 50 per cent of his
time in this activity, or the equivalent of 5.5 full-time
persons. This school had more than twice the personnel

time devoted to this activity as did the next ranking school
with the equivalent of 2.8 persons. There were only two
schools, regardless of size which had the equivalent of two
or mere persons serving as department chairmen. The highest
ratio of these schools with department chairmen was in a
school of 900 pupils having only one department chairman
and that in the field of physical education, devoting 5 per

-103 ..

I‘ll

OOHN
OCCN

OOMN
CONN

OOOH
oe-

OOhH
OOOH

OOmH OOMH OOHH OOO
OOOH CONH CCCH Com

If»!

OON OOm
cos L 8.-

OOm
8m

OOH

C nueoaHHowem

 

H
N

H N m m

N HNI—Id‘N HHH
H
H

H
H

Hauoa

O m

HH

HNH

m

Hmuoa

Omsaomu.

since“

mam-0me
mamauoooa
OOaHnOmNH
maea-ooma
OOOHquNH
OsmNuOCCN
omsmuommm

O4ONICCmN
OOONnOmuN
OaNmuCCCm
OOamsCmNm
OanmuCCmm

OOOmaCmum
OHNOIOCCH
OOsenCmme
Odbsnoome
OOOaquua
OaNmnCCCm
OOsmquNm
O¢bmtOOmm
OOOmICmum

mean coo-o

mOHpmm

 

now an mHoonom :mH: hoHnaw oompm gnaw 3oz CO :« nOHpmm annonhm Hm

I

.nonoaH
peoOIHH

MOB
ea--.aa sense

4‘

j

-104-
cent of full time to this administrative activity.

Sohools with enrollments exceeding 800 or more pupils,
with one exception, all had department chairmen. Eleven of
the 16 schools, or 62 per cent of these schools organized
with department chairmen, released individuals from teaching
responsibilities to administer this function. None of the
schools enrolling less than 399 pupils, and only one school
enrollingbetween A00 and 599 pupils, relieved teachers from
some teaching programs to serve as department chairmen. Howe
ever, schools with enrollments between 600 and 799 in about
33 per cent of the cases had teachers on released time for
this administrative purpose.

In fifteen schools that had department chairmen on
released time, the most predominate pattern was to release
them from one teaching period each day in their schedule.
This pattern occurred in slightly more than 50 per cent of
the schools. The smallest school with released time for
department chairmen had 560 pupils. This school had a de-
‘partment chairman for physical education who devoted 25 per
cent of his time to this activity. The largest school in
the study, with 2,202 pupils, had 13 department chairmen
released from teaching one period each day, representing 12
departments in the school. Physical education had two de-
Partment chairmen, presumably one each for boys' and girls'
Physical education, though it was not so stated by the
Principal. In nearly 50 per cent of the schools there was

-105-

a difference in pattern for granting time to department
chairmen within the building.

One school granted released time to its chairmen in
three different patterns. 'The four department chairmen,
one each in English, social studies, science and mathematics,
were granted 10 per cent of full time; chairmen in art and
music devoted 20 per cent of full time in administration;
while the chairman for physical education devoted 5 per
cent of full time to his administrative activities. Several
unique and different patterns of releasing department chair-
men from teaching were reported. For example, one school of
6A0 pupils in "up state" New York had three department chair-
men in the school, one full-time chairman in Latin, a half-
time chairmen in physical education, and a department chair-
man in modern Language, devoting 30 per cent of the time to
administrative activities. Another school of 850 pupils had
four department chairmen who spent 10 per cent of their time
in administration. These four departments were in industrial
arts, music, physical education and guidance. A third school,
enrolling 760 pupils, had a full-time department chairman
in music and physical education and four other chairmen, one
each in the fields of English, social studies, science and
mathematics, who were granted 20 per cent of full time to
administer their departments.

Only three schools in this study reported that they
had full-time department chairmen. One school, with 1,100

-106-

pupils, had as its only department chairman a full-time per-
son administering the physical education program. It has
been previously stated that one school of 760 had two full-
time chairmen in music and physical education and one had
a full-time person in Latin. In schools that granted re-
leased time to its department chairmen, the subject areas
of Latin and guidance gave time to the fewest number of
chairmen for administrative responsibilities. Also, the
fields of art, music, homemaking and speech gave few chair-
men released time for administrative activities. more
schools had department chairmen with or without released
time in physical education than any other field. The pre-
dominate pattern of having chairmen of departments, other
than physical education, was in English, social studies,
science and mathematics, with or without released time.

Schools in seven cases granted no released time for
departmental activities._ The smallest school that followed
this practice had A90 pupils, and had nine different depart-
ments with chairmen. The majority of schools used six de-
partment chairmen, in the areas of English, social studies,
science, mathematics, modern language, and physical education.
TThe second largest school in the study, with 1,500 pupils,
hmd.ll different chairmen. The principal in this school
stated that the various departments each year elected their
«own chairmen.

Table 12 was developed to show the ratio of pupils

-]_07-

 

mamN aaHN aaaH aaNH NamH aaNH NaHH Nae see man mam NNH
CONN OCCN OOmH OOOH OO4H CONH OOOH 00m 000 004 CON 0 mafiafidHOhflm

 

OH H N 4 4 m H Hmuoa

N H H OONICCN
H H OOmuCCm
OO4ICC4

OOnICOm

OOOIOOO

N H H OONIOON
. OOquOm

OOOuCOO

H H OOCHlCCCH
m H N A OOHHICCHH
. OONHICCNH

OOmHuOCMH

OO4HuCC4H

ommHuOOmH
N H H 83-83
H H mmsHuoouH
H H $3.83
N . . N 33 oomH

 

 

.nososHHounm
he nHoosom smHm onmsh oompm meow 3oz C4 nH mOHpmm noanHmno omoauhmmmnnHHmmmuu.NH mqm<a

 

-lO8-
to department chairmen. The median ratio of pupils to de-
partment chairmen was 1,1A0 : 1.

Instructional materials Services

In the category of instructional materials services
the schools reported two kinds of services, the position of
librarian and the audio-visual specialists. No other kinds

of services in this area were available to teachers or pupils.

Scpool Librapians
’Two of the principals reported no library services

from specialized personnel in their schools. The smallest.
school in the study, with 270 pupils, and a school enrolling
1,300 pupils, had no regular librarians. The smallest school
is located in the metropolitan New York area, the other in
the metropolitan area of Buffalo. Thirty-eight schools re-
ported that they had at least one full-time librarian, re-
gardless of the size of the school. In five of the schools
it was reported that more than a full-time person performed
library services in their schools. The smallest school with
more than a full-time librarian had 7A0 pupils enrolled, and
had a second person devoting A0 per cent of full time as a
library assistant. The two largest schools each had a
second full-time librarian, the only schools with such a
stafftng pattern. In those schools with an assistant to the
librarian the individuals spent from A0 to 50 per cent of
full time in this capacity.

-109-
Table 13 indicates the frequency distribution of

library services. The range in pupil-librarian service ratios
was from.a low of 3A0 :.l to a high of 1,350 :11. The median
ratio was 700 : 1. One might conclude from a review of the
table that in the majority of cases schools with libraries,
regardless of their pupil enrollment had a single librarian.
This means that in the smaller schools with, for example,

AOO pupils, teachers and pupils had three times as much
library service as did the school up to 1,350 pupils. It

was interesting to observe that the school with the greatest
amount of administrative staff and the most personnel serving
as department chairmen had the highest pupil-librarian ratio.
Also, the school with 1,300 pupils which was without a librar-
ian had eight supervisors in various subjects, from the
district office, performing administrative activities on a
part-time basis. This school did not have any department

chairmen on released time.

Audip-yigual Specialistp

The service of an audio-visual specialist was pro-
vided in 19 of the A0 schools with a person in charge of
this program. In only one of the schools was a person
assigned this activity as a full-time position. This occurred
invthe largest school, with 2,202 pupils. In 16 of the 19
schools, the individual administering this service was re-
leased from one teaching period each day. Two schools allo-

cated approximately .5 of a full-time person to this activity.

-llO-

 

OOOH
OOOH

OOMN
CONN

OOHN
OCCN

li.‘l|1llll‘lll|l| I ll.

OONH OOmH OOmH OOHH OOO OON OOm OOm OOH
OOOH CC4H CONH CCCH Com COO CC4 CON C

 

til

C4 H

MHNHH HMMNM d’tfiNHI-i HN

NHr-I

Hence

a, I '0'. ‘ DI y‘ll.‘ I!’

II- 1". it""l’u{|r|’x II I}; II ill 1" \ -. ' a I'll

H in m Niiom a .- Ji

Nr-IN
HH HM
NNM M
Ian-h-I

HHH

‘l'l’Il. llll} II'..’II.II. ll’f- trlllilllllut4

mucosHHonem

Hopes

O4NuCCN
OONICmN
O4mcoom
OOmuOmm

$.78.-
ass-o«s
Nem-ooa
Nem-0mm
$0-80

OOOsCmO
O4NuCCn
OOuaOnm
O4quOm
OOqumm

O4OICCO
OOOrCmO
O4CHICCCH
OOCHICmOH
O4HH|CCHH

OOHHIOmHH
O4NHICCNH
OONHuOmNH
O4mHICCmH

mH-HnH CmmH

1

333-

. lu ‘. ll!!! 'II

.npnoaHHoanm up mHooeom anm noHnse opsom anon 3oz 04 cH noHpmm ememuquuHHmsmnu.mH mqmws

e111-

The smallest school following this practice had 560 pupils
and the largest, l,lA0 pupils. I

Table 1A was developed to show the pupil-audio-visual
administrative ratio. There was a range of ratios from a
low of 685 : l to a high exceeding 10,000 : 1. Since this
was predominately a part-time service, the ratios were quite
high. The median ration was 3,600 : 1.

It is interesting to note that the schools with en-
rollments between A00 and 599 PUpils had the highest per
cent of all schools with personnel on released time to ad-

minister this program.

Baaséisl-laéizssiiea
The school principals reported two kinds of remedial
instructional services to pupils from personnel assigned to
their buildings. Remedial reading was the most predominate
type service provided. In a fewer number of schools speech

correction programs were offered the pupils.

Remedial fieading

Twenty-one of the A0 schools provided remedial read-
ing instruction. Four of these schools indicated that this
service was provided by personnel from the district office
on a part-time basis. Five of the schools reported that a
teacher was devoting one teaching period each day for this
Program. In four of the schools, principals stated that ~
‘this part-time service needed from 50 to 80 per cent of a

 

OOMN OOHN OOOH OONH OOmH OOMH OOHH OOO OOB OOm OOm OOH
CONN OCCN OOOH OOOH CC4H CONH OOOH COO COO CC4 CON C npmoEHHonmm

NH H N H 4 m h H Hmpos

H H O4OICCm
OOOquN

H H O4NHICCCH
OO4HICmNH

O4>HnCCnH
OOOHqumH
O4NNICCON
OO4NICmNN
O4NNICOmN

OOONqubN
H O4NmuOCOm
OO4mquNm
O4hmuOCmm
H OOOmnCmbm

H O4N4ICOC4

H H OO44quN4
O4N4uCCm4

OOO4qum4

H H O4NmICCCm

mafia-«Na
N H H mime-om“
$3.63.“
33.88
N H H msHa omNo

Hence uoHpNe

IDIII‘I

 

N
H
H

Fir-l

-112-
CW4HN HHN
r1
pa

 

.mpmoaHHOhem
up mHoonom stm AOHcoO oumum anon 302 C4 ad mOHpmm nonwhumwsHao< Hman>IoHos<uHHQmmul.4H mqm<e

-113-
full-time person to perform. There was no predominate
pattern for the time needed, or in the different size schools
in which it occurred.

Full-time teachers of remedial reading were found in
eight of the 21 schools with this program. The smallest
school with a full-time teacher had 560 pupils. .Only two
schools had more than one full-time person in the reading
program. The largest school (2,202) had two full-time staff
members in this area, and the second largest school (1,500)
had four full-time reading specialists.

Table 15 shows the frequency distribution of these
ratios. The median ratio of pupils to remedial reading
staff was lAOO : 1. The ratios ranged from a low of 358 : l
to a high in excess of 10,000 : l.

Spgech Cpprection
' Forty per cent of the junior high schools in this

study provided speech correction programs to their pupils.
Providing this service to pupils did not seem to be related
to the size of the school. This service was provided in a
variety of different patterns. Two of the schools had on
their staff a full-time speech correctionist. Several of
the principals indicated that this service was from a co-
operative board of the county school office. Other schools
had a person whom they shared among all the schools in their
individual school district.

-llh-

.oOHmHo poHnunHo on» sown Homeownon ho noOH>0tms

OOmN OOHN OOOH OONH OOmH OOmH OOHH OOO OOO OOm OOm OOH
CONN OCCN OOOH OOOH CC4H CONH CCCH COO CCO CC4 . CON C manoaHHOLom

HN H H m 4 N O N N Hmpoa

H OO4ICmN

H O4OICCm
OOOsomO

* O4NHICCCH

OO4HsomNH
H O4NHnCCmH
OOOHuOmNH
H * O4NN|CCCN
, OO4NsCmNN

O4NNICCmN
OOONuCnON
O4NmnCCCm
OO4mquNm
O4NmaCOnm

H * OOOMIOmOm
O4N4ICCC4
OO44aOmN4
O4m4uCCm4
OOO4IOmN4

meNmuooom
OOHmuOmNm
H H O4mmn00mm
mommuOnsm
4., H N H msHa coco

Hence . . moHme

>

 

N HM dNNc-l
H
H
,4
fl- HHH

. . .mpmosHHoumm
hp mHoonom AMHm hOHmsu macaw meow 3oz C4 mH nOHpmm onHHmHoomm wnHomomuHHmmmuu.mH mHde

-115-

Fourteen of the 16 principals reported this to be a
part-time service to the school. With one exception, schools
had the services of a speech correctionists from 10 to 20
per cent of full time. One school of 580 pupils reported
having this service one-half time in that building.

Table 16 indicates the frequency distribution of
this service. The ratio ranged from a low of 292 : 1 to
over 10,000 : 1. In fact, five of the schools had ratios
in excess of 10,000 : l. The median ratio for this service
to pupils was 1 : 5,000.

Pupil-Teacher Ratio.

Principals were asked on the questionnaire to indi-
cate the total number of classroom teachers on their staff.
Classroom teachers were defined as these professional numbers
of the staff who met with a group of pupils on a daily
scheduled basis, and who were not reported in the other cate-
gories of personnel previously discussed.

The pupil-teacher ratio of these junior high schools
seemed to be related to the pupil enrollment. Table 17 in-
dicates that the lowest pupil-teacher ratios occurred in the
schools with the smallest enrollments. These ratios gradu-
ally increased from the schoolin the 200-399 class to the
peak ratios occurring in schools enrolling 600-799 Pupils.
After this peak was reached in the 600-799 schools, the ratios
gradually declined in each succeeding size school until the

~116-
rari .4r4
H

l II’ |f

OOmN OOHN OOOH OOOH OOmH OOmH OOHH OOO OOO OOm OOm OOH
t. CONN OCCN IOCOH OOOH CC4H “mmmm. CCOH Cow COO CC4 CON C

 

OH H .H van. N mlxalnw4 Hw 1'
H H

Hr-l
H

N N N N H

Hmpoa

iiii IIII‘I'I'I In." :IIIII'IIIIII‘"'I'IIII' {'t' Illl 'In'.|.ll it I‘ . IIIIII. I: I] III' lull 'Ilul. I.

.mpmosHHOHnm

 

mucosHHOAom

Hmpoa

OO4quN

O40uCCm

OOOICmN
O4NH|CCCH

OO4HuOmNH
O4OHICCnH
OOOHquOH
O4NNnCCCN
OO4NICmNN

O4NNICCnN
OOONsCmbN
O4Nmnooom
OO4msomNm
O4NmaCCmm

OOOmquhm
O4N4ICCC4
OO44ICmN4
O4N4ICCm4
OOO4nCmO4

O4NnuCCOm
OO4mnCmNm
O4umuoomn
OOOmqumm
msHa 88

noHpmm

’Iit'l'

.3 nHooeom swam SHE-e ocean x3» .52 o.- 5 moHo-Nm pchoHoootuoo nooommuHHmH-mnnéH mamas

-117-

 

OOMN OOHN OOOH OOOH OOmH OOMH OOHH OOO OOO OOm OOm OOH
CONN OCCN OOOH CCOH CC4H CONH CCCH COO COO CC4 CON C momoaHHOhmm

 

 

 

j H m m N CH m .- H38.
.70
a-“
eH u oH
e H H N m 3-2
ON H H N e m o e H 4N - 0N
O N m H mN . mN
4n n Cm
H H Om n mm
Hence . . . moHpmm

‘I'

.nomesHHonmm he mHoonom OOH: nOHemm ounpm meow 3oz O4 :H nOHpmm honomoauHHasmnu.NH mHm<s

-118-
1200-1399 class was reached. Then, in general, the ratios
remained about static for the largest schools in the study.
This decline from the peak at the 600-799 enrollment to the
1200-1399 enrollment did not quite return to the low pupil-
teacher ratio occurring in the 200-399 pupil schools.

One familiar with the schools in New York State might
hypothesize as to why the school pupil-teacher ratio increased
from the smallest school to a peak at 650 pupil schools,
then showed a gradual decline again. The curricula of the
junior high school in New York State are subject to the Regu-
lations of the Commissioner of Education. In February of
1951 a statement of policy relative to junior high school
education was sent to the schools of the state. This state-
ment described the early secondary education program and
the State Aid for such a program. The schools were given
until September, 1956 to reorganize the educational program
for these early secondary school grades.

This statement of 1951 stated that, beginning with
the seventh grade, organized instruction in English, citizen-
ship education, mathematics, science, health, art, music,
practical arts, and physical education was to be included.
The content and scope of the courses in these areas were
outlined in the various State syllabus and curriculum bulle-
tins which, in effect, were interpretations of the Regula-
tions of the Commissioner of Education. Further, after

September 1, 1956, local districts not maintaining an acceptable

-ll9-
secondary school program beginning with the seventh grade
were required to secure an annual approval from the Com-
missioner of Education, in order to qualify for state aid
for pupils enrolled in grades seven and eight. To qualify
for state aid, the school district had to show evidence that
if it could not meet this regulation by September 1, 1956,
it was making an effort to do so.

To comply with this regulation to secure the state
aid money, in effect, the mandated instructional program
had to be followed. The smaller schools must offer this
program as do the larger schools. However, in the smaller
schools of A00 pupils, teaching the mandated program during
a seven or eight-period school day would develop class sizes
that ordinarily would not exceed 20 pupils. In the 650 pupil
school, with the same number of periods in the day and with
the identical program, class sizes of 30 pupils would develop.
After classes reach 30 pupils in New York State, teachers,
administrators and parents bring tremendous pressures to
reduce class sizes. To do so it then becomes necessary to
divide classes into multiple-sections. Therefore, the class
sizes are reduced, which to some extent may account for this
peaking of pupil-teacher ratios in the junior high school of
650 pupils, and the gradual reduction in larger schools.

There are, of course, several other determiners of
class size familiar to educators, such as school district

policy on class size, the capacity of the school building,

‘ -120-
the size of classrooms, the financial ability of the school
district, as well as the aspirations of parents for their
children's education. These and other factors tend to
influence the size of classes in a school district.

Table 17 shows the frequency distribution in pupil-
teacher ratios. The median ratio was 22 : l. The range was
from a low of 15.5 : l to a high of 35.6 : 1.

The low ratio occurs in a school of 3A0 pupils. The
high ratio school had 6A0 pupils enrolled. Twenty-six of
the A0 junior high schools in this study had ratios that
ranged between 20 : l and 2A : 1. With the exception of
schools enrolling less than A00 pupils this was the predominate
pupil-teacher ratio.

Professional Service from the Distpiqt Office

Table 18 indicates the various kinds of services

provided these junior high schools from the district admin-
istrative office. This table indicates that 25 different
kinds of professional services were provided. Thirty-six

of the A0 schools reported that they received some kind of
professional service in this manner. The four schools with-
out this kind of service ranged in enrollments from 650 to
1,000. There was no predominate pattern among these schools.
NOr was there a predominate pattern for the schools, regard-
less of enrollment, as to the service that was furnished by
the district office. Services that were provided usually

-121-

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-123-
occur in teaching service, supervisory or administrative
service, or a special type of program.for pupils. These
various types of service will be discussed in detail.

Instrumental Music Teachers

More schools shared instrumental music teachers
from the district office than any other kind of service.
Twenty-eight of the A0 schools, all with enrollments of less
than 1,300, shared from one to three instrumental music
teachers in their school district. Most schools reported
sharing band and orchestra teachers. The predominate pattern
was for the teacher to spend from 50 to 60 per cent of full
time in the junior high school. One school.which had the
most service of any school in this category, had four music
teachers, the equivalent of 1.8 full-time music teachers
serving the school. The least amount of any teaching service
in music reported was one period each day. Two schools re-
ported district supervisors of music providing supervision
to that part of the junior high school program.

Art Tegghprs
Eight schools were provided with personnel in the

field of art. Three of the eight schools stated that an

art supervisor made calls to their building. Five schools,
all enrolling between 700 and 800 pupils, shared art teachers
'with another school building, usually the senior high school.
These five schools had art teachers from 50 to 60 per cent

-12A-
of full time from the district office.

Shop Teacheps
Only one school of 560 pupils shared this teaching

service through the district office. This school had a
teacher for 50 per cent of full time. The other two persons
in shop services provided supervision to the junior high

school.

Homemaking

Three schools reported sharing teachers in home
economics. These schools had enrollments ranging from 560
to 8A0. These teachers spent from one to two class periods

each day in these junior high schools.

Vocal Mpgie
Principals in four schools reported that they shared

a vocal music teacher with other schools. Three of the
schools with enrollments of about 550 shared these teachers
from A0 to 80 per cent of full time with other schools. The
largest school that shared this service had 1,150 pupils and
had a vocal teacher for 50 per cent of the school day.

In three other schools with pupil populations from
7A0 to 1,330, there was supervision of the music program
from the district office.

thsi cal Education
A full-time physical education staff was assigned

-125-
in two different schools enrolling 560 and 850 pupils re-
spectively. One school of 8A0 pupils had a physical educa-
tion teacher for 50 per cent of full time. One school of
900 pupils had a supervisor of physical education who made
intermittent calls at that building.

Mathematics
Two schools reported having a mathematics teacher

from the district office. One of the schools with 580
pupils reported having a teacher 50 per cent of full time.
The other school, of 1,300 pupils, had a school district

supervisor of mathematics teaching.

Science

None of the schools had a teacher of science assigned
from the district office. One school of 1,330 pupils, how-
ever, reported that a supervisor of science made periodic

calls to that building.

Modgrn Langpgge
Two of the larger schools, enrolling 1,300 pupils,

reported having a language consultant or supervisor as a

service from the district office.

En ish

. A consultant in English teaching in a junior high
school of 1,300 pupils spent about 20 per cent of full time
as assigned by the district office as one service to that

-126-
school. In one other case, in a school of 850 pupils, an
English teacher from the senior high school taught two

classes in English each day as a shared service.

Latin
The principal of one junior high school enrolling

750 pupils reported that a Latin teacher from the senior

high school taught one class each day in his building.

Businegs Education
One of the principals in a junior high school of

1,300 pupils reported that the district office had a super-

visor of business education that called at his school.

Psychologist

Forty per cent of the junior high schools shared
the service of a psychologist from the district office.
Only one of the schools reported having the services of a
psychologist assigned as much as 60 per cent of full time.
Most of the schools that shared this service stated that
individuals were assigned from 5 to A0 per cent of full time.
Most of this sharing occurred in schools enrolling between
500 and 1,000 pupils. Schools with over 1,000 pupils usually
had a psychologist assigned on their staff. Nearly 50 per
cent of the schools reported having a school psychologist
"on call" from the district office. These schools with this
type of service did not fall into any distinct pattern as far

as enrollment was concerned.

-127-

Guidance Counselors

The smallest school in the study, enrolling 270
pupils, reported sharing a guidance counselor 60 per cent
of full time with the district office. One other school,
of 500 pupils, had a counselor for one period each day.
One of the larger districts of 900 pupils reported that the
district had a coordinator of guidance services.

Sociai Wbrkgr ’
Two schools reported that this service was available

"on call" to the district office.‘

School Nurse

Five of the schools had nursing services to pupils
from personnel assigned from.the district office. These
schools ranged in enrollments between 530 and 950. In one
of these cases the nurse in the smallest school was assigned
full time. In two schools with 580 and 950 pupils, nurses
were assigned 80 per cent of full time to those buildings.
In the other two cases nurses spent 50 per cent of full time

in schools with 560 and 700 pupils, respectively.

Dentgi fizgienist
Three junior high schools reported that they had

the services of a dental hygienist, but not on an assigned
basis. Only in two of the schools were the individuals
given a definite time allocation in that building from the

-128-
district office. A school with 560 pupils had a dental
hygienist for one-half a day, each day. The other school of
1,500 pupils shared this service 60 per cent of full time

with an elementary school.

Speech Correction
Twelve schools with pupil enrollments between 270

and 1,050 were assigned speech correctionists from the dis-
trict office. In only one school of 580 pupils was there

a person assigned for as much as 50 per cent of full time.

By far the predominate pattern was for the person to spend

between 10 and 20 per cent of full time in a particular

school, regardless of enrollment.

Remedial Reading
There was no discernible pattern for sharing or

having remedial reading service from the district office.
Individuals with this position spent from 10 to 60 per cent
of full time in the school performing this service. Most

of the schools sharing this service enrolled less than 700
pupils. It was reported earlier that many schools above 700
pupils had this service on a full-time basis, assigned regu-
larly to their building.

L Re n
The part-time service of lip reading existed in only

three schools. These schools were parts of a larger school

~129-
district. In all cases, the principals reported that they
used the individual about 10 per cent of full time.

Special Teachers
While information on special teachers was not asked

for on the questionnaire, one school of 650 pupils reported
that a teacher had an ungraded group in the Junior high

school for one half-day.

Audio-visual Specialiets
Only one school, with 1,050 pupils, had audio-visual

service from.the district office. The specialist was avail-

able to the junior high school 20 per cent of full time.

Director of Instruction
The largest school in the study had three persons,
each of whom spent 50 per cent of his time serving as director

and coordinators of the curriculum program in the school.

Attendance Officers

Two schools had attendance officers available to
the school principal. One individual served on an "on call"
basis, whereas the other person was available about 30 per

cent of full time to a junior high school of 560 pupils.

T ical Current Staff in New York
Junior 3:25 SchoIs

To conclude this status study of current staffs in

the Junior high schools of New York State, the reader may be

 

-130-
better able to understand the differences in staffing
patterns and organization by reviewing a constructed ”typical
school." This "typical" school would represent the various
size schools by projecting the three different images which
these schools seem to have. These images, from the data
available, seem to fall into three different classes: those
with less than 600 pupils, those between 600 and 900 pupils,
and those with more than 900 pupils. These divisions were
selected because at these population breaks there seemed
to be the most changes in the staffing pattern and, also,
because these populations seemed to indicate provision of

different kinds and amount of services to pupils and teachers.

Scheole pith Lees than Six Hundred Pupils
In schools with less than 600 pupils, the typical

pupil-teacher ratio was 20.7 : l, and the typical pupil-
total staff ratio was 17 : 1. Following is the typical
staffing pattern.

Administration
Full-time building principal.

Guidance services
Part to full-time counselor.

Health services
One-half time school nurse.

Department chairmen
None.

Special services
Full-time librarian.
Teacher released from one teaching period each day for
audio-visual service.

 

-131-

Services from the district office
One-half time music teacher.
Equivalent of one half-time person in:

Psychology,
Speech or reading instruction.

Sehools with Between Six and Nine Hundred Pupils

In schools with enrollments between six and nine
hundred, the typical pupildteacher ratio was 24.1 : l. The
pupil-total staff ratio was 19.3 : 1. Following is the
typical staffing pattern.

Administration
Fulletime building principal.
Part-time assistant administrator.

Guidance
Full-time guidance counselor.
Part-time to full-time counselor.
Psychological services on call.

Health
Nurse from 70 per cent to full-time.
Limited service from a dental hygienist.

Department chairmen
Four to six department chairmen, rarely on released time.

Special services
Full-time librarian.
Part-time audio-visual person.
Part-time reading teacher.

District office services
Equivalent of at least one full-time music teacher.
Equivalent of at least one full-time person in:
Supervision or coordination,
Psychology,
Reading and speech correction.

43 hools with More than Nine Hundred Pupils
In schools with enrollments over 900, the pupil-

teacher ratio was 21.5 : l. The pupil-total staff ratio

 

-132-
was 17.8 : 1. Following is the typical staffing pattern.

Administration
Full-time building principal.
Full-time assistant principal.
Part-time administrators.

Guidance
Three full-time counselors.
Part to full-time psychologist.

Health
Full-time nurse.
Part-time dental hygienist.

Department chairman

Five to ten department chairmen-~released from teaching
at least one period each day.

Special services
One full-time librarian, with some assistance.
Part—time staff in:
Audio-visual instructions,
Speech correction.
Pull-time or more reading specialists.

District office services
The equivalent of nearly two persons in:

Supervision and consultant service of various kinds.
Instrumental music.

CHAPTER V

ADMINISTRATIVE AND SUPERVISOR! FUNCTIONS AT THE ’
JUNIOR HIGH SCHOOL DEEMED NECESSARI T0 CARR! OUT
ITS PURPOSE

This chapter presents a discussion of the seminar
in which identification was made of the administrative and a
supervisory functions deemed necessary in the Junior high
school. It also presents a listing of the functions which
the seminar groups identified, following which is detailed
discussion of the 43 functions, grouped under the headings
of work with: instructional program, pupils, personnel,
community, and finally, funds and facilities.

Identifica ion of A nistrative and
Supervisory ctione

The seminar groups were requested to participate in
answering the second question of the study:

What are the administrative and supervisory functions
needed at the Junior high school to carry out its purposes?
The eleven operational purposes of the junior high school,
agreed upon by the seminar participants are stated in Chapter
III. The basic technique to be used to determine the admin-
istrative and supervisory function had been suggested and
agreed upon by the Advisory Council. This technique consisted

-133...

.-13h-

of providing each seminar participant with a list of 52
administrative responsibilities that had previously been
developed for an earlier study by CDPSAl in New York State.
It was agreed that this basic list was to be used only as
a point of departure or as guidelines to assist the seminar
groups in formulating the functions that they thought nec-
essary to carry out the purposes of the junior high school.

At the seminar meeting, scheduled for the identifi-
cation of the administrative functions necessary to carry
out the purposes of the junior high school, this basic list
of administrative duties was distributed to the participants
and discussed and explained at some length by the seminar
directors. It was pointed out that the list of administra-
tive responsibilities was to be used as a guideline in
assisting them to develop the administrative functions
unique to the junior high school, to carry out its purposes.
For example, it was pointed out that such items as: debt
service management, administering the payroll, and direction
of the program of bus maintenance, should not be the respon-

sibility of a building principal, and consequently should not

 

1The original listing of functions which were dis-
cussed, changed and adapted to the junior high school by
the seminar discussants were taken from the following source:
Cooperative Development of Public School Administration in
New York State, Your school and staffEng, current practices
in Administrative Sta ing in ew for State A any, New

York: CDPSA, 1955).

-135-

be considered to be related to a purpose of the junior high
school. Further, this list was for the total school system,
and perhaps had only minor application to the junior high
school.

In addition to providing the participants with a
list of administrative functions, each seminar participant
was given a copy of the statement of the operational pur-
poses of the junior high school, together with copies of a
form (see Appendix C) developed to be used to record admin-
istrative activities needed, in their opinion, to carry out'
each of the purposes of the junior high school. The partici-
pants were divided into groups of five to seven persons, de-
pending upon the attendance at the seminar meetings, to
permit individuals actively to become involved in determin-
ing these administrative functions. At most of the seminar
centers, the sponsoring institution had professional staff
personnel serving as consultants to assist each of these
groups. Each purpose of the junior high school was to be
considered and the groups were to suggest activities needed
to carry out that purpose.

At the conclusion of the seminar sessions, several
hundred forms had been used to record administrative functions
considered necessary to carry out the purposes of the junior
high school. These suggested activities were compiled from
each group at the seminar centers. When all the seminar

centers had compiled their data, they were submitted to the

~136-
coordinator of the study to be summarized and submitted to
the advisory committee, who, after carefully reviewing the
seminar deliberations, agreed upon #3 administrative and
supervisory functions proposed by the seminar participants
that were considered to be necessary to carry out the pur-
pose of the junior high school.

Any attempt to derive a set of administrative func-
tions, from a statement of purposes, requires additional
consideration. There are certain routine responsibilities,
such as housekeeping duties which are necessary to the opera-
tion of the school. It would be difficult to categorize
these as applicable to a particular objective. For example,
the direction of plant maintenance is an important function.
Although it is routine in nature, and allows the teaching-
1earning process to go on unhampered, it would be extremely
difficult to classify this function as pertaining specifically
to one of the stated purposes. Consequently, although the
needed functions were listed with these purposes in mind,
they were categorized under five headings by the seminar
groups, which appeared to be broad enough to encompass all

functions of administration.

Statement of the 52 Functions

In this section the seminar participants answered
one of the basic questions of this study: What administrative

functions are necessary to fulfill the stated purposes of

-137-
the junior high school? Answering this question is very
fundamental to thisstudy, for the recommendations for staff-
ing and organization that follow in later chapters is based
upon the administrative functions suggested by the seminar
groups. These administrative functions will be further used
to classify positions and develop job descriptions for each
administrative position in the school.

.The following are the administrative and supervisory
functions deemed necessary by the seminar groups to carry'
out the purposes which they defined for the junior high
school:'

Improving Educational Opportunity

Revising curriculum and selecting curricular materials.

Assisting teachers in diagnosing the learning diffi—
culties of pupils.

Helping teachers in planning remedial instruction.

Making recommendations to superintendent for policy ,
formation and revision.

Directing and coordinating the guidance program.

Directing the program for exceptional children.

Directing and supervising the pupil activity program.

Directing the health and safety program.

Directing the summer recreation program.

Coordinating the use of instructional materials.

 

werking with pupils

Controlling pupil behavior.

Accounting of pupils.

Scheduling of pupils.

maintaining pupil personnel records.

Directing the program for orientation of new students.

Obtaining and Developing Personnel

Selecting and recommending to the superintendent fer
employment of personnel.

-138-

Inducting and orienting personnel.

Supervising personnel.

Evaluating personnel--recommendations for promotion
and retention.

Preparing and maintaining staff personnel records.

Selecting substitute teachers.

Directing and coordinating inservice training pro-
grams.

Counselling personnel.

Scheduling personnel.

Maintaining Effective Interrelationships with the community

Helping the superintendent to determine the edu-

cational needs of the school.
‘ Pre aring special reports and bulletins regarding

t e schoo . '

Conferring with parents and other lay groups.

WOrking with P. T. A. and other lay groups.

Preparing public relation information.

Developing procedures for reporting pupil progress
to parents.

Planning and coordinating the public relations pro-
gram for the school. ,

Providing and Maintaining Funds and Facilities

Preparing school budget requests.

Managing budget appropriations.

Plant planning and construction.

Administering the insurance program for students.

Directing the program of plant maintenance.

Directing the school lunch program.

Supervising intra-mural activities.

Determining specifications for supplies and equip-
ment.

Requisitioning supplies and equipment.,

Distributing supplies and equipment.

Inventorying supplies and equipment.

Preparing reports for the superintendent.

Securing of the Qeta

The questionnaire (see Appendix B) method was used
to secure these data. As was previously described in Chapter
IV, the principals of registered junior high schools in New

-139- .
York, exclusive of New York City, as listed in Handbook No.
2A of the New York State Education Department, were asked
to respond to this question:
The building principal is hard pressed to perform all
the necessary administrative functions at a junior high
school. Please indicate in Column (1) whether you do
perform this alone, or in Column (2) if you assign the
function entirely to another and indicate to whom you
assign it, or in Column (3) if you share the function
with another staff member and indicate with whom you
share it.

There followed a listing of the A3 administrative
functions,appearing earlier in this chapter, and which had
been agreed upon in the seminar groups, as necessary to
carry out the purposes of the junior high school. Following
is a tabulation of these A3 administrative functions, with
an indication of how and by whom they are administered in
these A0 schools. The descriptions differentiate between
three different size schools. Those schools with pupil en?
rollments of over 900 are designated as ”A" schools; schools
with enrollments between 600 and 900 pupils as "B" schools;
and those schools with less than 600 pupils enrolled are
designated as "C" schools. These sizes were chosen since
they appear to represent the enrollments in which additional
personnel were added to the junior high school staff.

The A3 administrative functions discussed in this
chapter are presented in the following five subheads: work
with instructional program, work with pupils, work with
personnel, work with community, and work with funds and

facilities.

-1A0-

WOrk with Instructional Ppegpam

The administrative functions having to do with the
category "work with instructional program," and the methods
the various principals used in dealing with these functions,
are tabulated in Table 19. The reader must recognize that
the number of schools are not equally divided in all classes,
that schools with enrollments of 600 to 900 have one more
school in this group than do the other sizes.

In all the A0 schools, the principals handle nearly
33 per cent of all the functions alone. In nearly 50 per
cent of all schools, these administrative functions are
shared, whereas, only 18 per cent of these functions are
assigned. The detailed descriptions that follow discuss in
depth, how and by whom, each of these functions are admin-

istered in the various sized school buildings.

Curriculum and Currieular Materials
The function of revising curriculum and selecting

curricular materials was typically shared by nearly 75 per
cent of all the principals, with teachers, their department
headS. district office personnel. or other building adminis-
trators. Approximately 50 per cent of the “A" size schools
shared this function with district office personnel. Their
titles were: coordinator of instruction, supervisor, directors

01 instruction or assistant superintendent of instruction.

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-142-

They also shared this function with department chairmen and
other administrative assistants in the building to some ex-
tent. About 60 per cent of the ”B“ schools shared this
function with teachers. They also shared this function in
about 30 per cent of the schools with either department chair-
men Or other administrative personnel in the building. Teachers
rarely shared in this function in these schools. In the "C"
schools, this function was shared in 77 per cent of the
schools, and equally divided between the district office
personnel and faculty committees. There was no difference
between the size of school in which the principals handled
this function alone. Only 12 per cent of the principals
assigned this function, with most of the assignment occurring
in the "A" size schools, who assigned this function to the
district office. .

Diagpoeis of Leappipg Difficulties
Slightly more than 67 per cent of all the principals

of all size schools handle the function of diagnosing learn-
ing difficulties alone, or on a shared basis. The "A“ school
principals shared this function in 77 Per cent of the schools,
with other building administrators, the guidance staff or
district office personnel. Predominately, however, the
principal shared this with his guidance staff or other build-
ing administrators. In the "B" schools this function was

also shared in 77 per cent of the schools, but in 90 per cent

-143-
of the cases it was shared within the building between gui-
dance counselors, more often than with other building ad-
ministrators. This function in this size school was less
frequently shared with teachers and district office per-
sonnel. The "C" school principal shared this function in
about 53 Per cent.of the schools with either a guidance
counselor or district office personnel.

Less than 17 per cent of the principals of all schools
handled this function alone or assigned this responsibility.
There was a distinctive pattern of assigning this function.
Those principals who did assign this function, did so exclu-
sively to the guidance staff, regardless of the size of
school. However, there was no distinctive pattern for the
different size schools as to whether the principal handled

this function alone.

Remedial Instruction
Nearly A0 per cent of all the principals said they

shared with others the function of helping teachers to plan
remedial instruction. The majority of all principals shared
this function with the district office personnel. In the "A"
size schools 62 per cent Of the principals who shared this
function did so in 50 per cent of the schools with district
office personnel. They also shared this function about
equally divided between the guidance staff and other building
administrators. In "B" size schools this sharing was done

-144-

in 35 per cent of the schools, predominately with the build-
ing personnel. Department chairmen and other building ad-
ministrators shared this function more often than did faculty
committees. Less than 25 per cent of the small school prin-
cipals shared this function and when they did share it, it
was done exclusively with the district office.

Less than 8 per cent of all principals stated they
assign this function, and when it was assigned it was done
so exclusively to the coordinator of pupil personnel services
in the district office.

Nearly 53 per cent of the principals handled this
function alone. This occurred in only 25 per cent of the "A"
schools, but in nearly 65 per cent of the "B" and "C" size

schools.

Recommepeetioes regarding Policz
The responsibility of making recommendation regarding

policy was rarely assigned in the junior high school, over
70 per cent of the principals handled this function alone.
About 30 per cent of all principals handled this function by
sharing. The highest percentage of sharing this responsi-
bility occurred in the "C" schools, and nearly A0 per cent
of the principals stating that their total staff shared in
this function. Some sharing was done with district office
staff and other administrators. In the "B" school nearly

72 per cent of the principals handled this function alone

-155-
and 28 per cent shared the function. Those who shared this
function did so exclusively with faculty committees. In
the "A" schools, nearly 85 per cent of the principals handled
this alone. Of the small per cent who shared this function,
nearly 15 per cent did so with the district office as well

as their own staffs.

Coordination of Guidance Program
The principals were about equally divided between

those who handled coordination of the guidance program alone
or shared it. Of the A5 per cent of principals who shared
this function, they did so with either the district office
personnel, their guidance staffs, or other building admin-
istrators. The "A" and "B" size schools in about A5 Per
cent of the cases shared this function with district office
personnel. There was no distinct pattern of this sharing

in these size schools. Less than 25 per cent of the "C"
school principals shared this function, although those who
shared it, did so with the district office personnel. Prin-
cipals in "C" schools assigned this function in nearly 50
per cent of that size school, as contrasted to less than 15
per cent assignment in the combined "A" and ”BF size schools.
The "C" school principals assigned this function exclusively
to their guidance counselors. A slightly smaller percentage
of "C" school principals handled this function alone, than
did the principals in schools of other sizes. None of the

-146-
principals assigned this function to another administrator
in their building.

Pupil Activity Program
No distinct pattern for handling this function was

discernible from the data. It was shared in about AO per
cent of the schools, assigned in 30 per cent of them, and
handled alone by the principals in 30 per cent of the schools.
Those few schools that had a coordinator of pupil activities
assigned the responsibility to that individual. In the
schools without this position, particularly in the "C"
schools, they assigned this function to the guidance de-
partment. The "A" and "B" principals assigned this to the
guidance department about as often as they did so to other
building administrators. Among the schools that shared this
function, there was no discernible pattern to this sharing.
It was shared with faculty committees, counselors, student
councils, other building administrators and the district
office. One "A" size school principal assigned this function

to the student council.

Progpam.£or Exceppional Children
About 25 per cent of the principals handled alone

the program for exceptional children with no appreciable
difference in pattern between the different size schools.
Slightly more than 50 per cent of all principals shared this
function, in a variety of ways, but more often with the

-147-
district office personnel than other ways. The guidance
staff was involved more often in the sharing than were other
building administrators. In less than 8 per cent of the
schools was this function shared with the general faculty,
according to the principals responses to this question. In
the "A" schools, teachers were never asked to share in this
function, whereas, in the "C" schools this occurred in 50
per cent of the schools. In nearly 75 per cent of the
schools the principal handled this alone or shared this
function. Approximately 18 per cent of the principals assign
this function but never to an assistant administrator. It
was assigned to the district office in 90 per cent of the
schools and with counselors in the other 10 per cent of the

schools.*

Health and Safety Progpam
In 38 per cent of the "B” schools and 21 per cent

of the "A" schools the principals handled the health and
safety program alone, whereas, in the "0" schools the prin-
cipals never handled this alone. In about 30 per cent of

the schools this function was assigned and most often in 70
per cent of the cases to the physical education department.

No distinctive pattern of assignment existed between the
larger and smaller schools. In only 5 per cent of the schools
was this function assigned to another administrator. In all

size schools the science department as well as the school

-1A8-
nurses participated to some extent in this function. School
nurses, however, had this function assigned to them in less
than 3 per cent of the schools, and they shared in this func-
tion in less than 8 per cent of the schools. Very limited
use was made of faculty committees in this function. Rarely
'did the district office participate in any size school in
this function.

Summer Recreational Progpam
The handling of the summer recreational program was

applicable to less than 29 per cent of the schools, since
only 11 of the A0 school principals said they had Summer
recreation as an administrative function. It would appear
then, that this administrative function had very limited
application to most of the junior high school principals,
regardless of the size school he administered. More than

50 per cent of the summer programs were in the "A" size
schools. None of the principals handled this responsibility
alone. In about half the schools that had a program, it

was assigned to the physical education department. In

one of the schools the P. T. A. administered the program.

In none of the schools did the school staff other than physical
education share or participate in this program. A very
small percentage of the schools had some one from the dis-

trict office administer the program.

-149-
Use of Instructiopal Materials

In the "B" schools, 12 per cent of the building prin-
cipals coordinated the use of instructional materials alone,
as compared to only 7 per cent of the "A" school principals,
and 30 per cent of the "C" school principals. The "A" school
principal, in 77 per cent of the schools shared this function
with the district office personnel and his department chair-
man. About 50 per cent of the "B" and "C" school principals
shared this function and there was no distinct pattern that
the sharing followed. It might be with the district office
personnel, department chairmen, faculty committees or other
administrators within the building. In a previous chapter
it was stated that nearly 50 per cent of the schools had
individuals assigned to audio-visual instruction, and about
95 per cent of the schools had librarians. Yet in only 3 per
cent of the schools did these people participate in any
manner in the coordination of instructional materials. About
12 per cent of the principals assigned this function, with
little difference in the pattern for the different size schools.
There was also no pattern to the assignment, it might be to
the assistant principal, the district office, department
head, or a committee of faculty. However, only 2 per cent
of the principals said they assigned this to one of their

assistant administrators. -

-15o-

Wbrk with Pupils

All the functions in the category of working with
pupils were more often shared by the building principal
with other staff members than handled in any other manner.
Slightly more principals handled these functions alone than
assigned them. However, it must be pointed out that the
"C" school principal had no one to assign this responsibility
to, so he either performed this function alone or shared the
function. In the "B" schools, all the functions in this
category were almost eqully handled alone, assigned or shared.
The principals in "A" size schools handled these functions
alone in 50 per cent fewer instances than did the "B" school
principal. There was little difference between the "A" and
"B" school assigning these functions to anyone, or to a
pattern of assignment. Table 20 indicates how this function

was administered.

Behav10p Coptrol
One-half the schools reported that behavior control

was shared with assistant principals, guidance personnel

or teachers in all size schools. Assistant principals shared
this function in 50 per cent of the "A" and "B" size schools,
and guidance personnel in about 30 per cent of these schools.
In the "C" schools, guidance personnel shared this function
in 50 per cent of the schools, with teachers participating

-151-

 

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-152-
less than other building administrators. In the "C" schools,
about SA per cent of the principals handled this function
alone, as contrasted to #3 Per cent and 15 per cent of the
"B" and "A" schools, respectively. In about 25 per cent of
the ”A" schools the principals assigned this function and
did so either to assistant principals or to the guidance de-
partment. In the ”B" schools those 15 per cent of the prin-
cipals who assigned this function, did so to other building
administrators. This function was handled alone by the prin-
cipal in about 38 per cent of the schools and shared the
function in 50 per cent of the cases, or in about 90 per cent
of the schools the building principal was involved in this

function.

Pupil-Accoeptipg

In nearly A5 per cent of the schools pupil-accounting
was handled by the principal alone. However, nearly 50 per
cent of the cases were in the "C" size school where there
were no other administrators to whom this function could be
assigned. In more than 50 per cent of the "A" and "B"
schools about A2 per cent of the principals assign this func-
tion to an assistant administrator. However, in the other
50 per cent of the schools they assigned this function to
nurses, guidance counselors, teachers or clerks. This assign-
ment followed no distinct pattern in any size school. This
was a shared function in only 25 per cent of the schools,

with no distinctive pattern of sharing emerging between the

-153-
three different size schools. Those who shared the function

did so in nearly 80 per cent of the cases with district
office personnel or other administrators in the building.
Teachers rarely participated in this function in any size

school.

Pupil-Scheduling
. Eight per cent of the principals of all size schools

said they handled pupil scheduling alone, or shared it with
other staff members. The 20 per cent who assigned this
function, predominately assigned it to the guidance counselors
in 60 per cent of the schools. Assistant principals were
rarely assigned this function any more often than it was
assigned to classroom teachers. In the ”C" schools, guidance
counselors shared this function in 50 per cent of the schools,
with teachers participating less than other building admin-
istrators. Of the A0 per cent of the principals who handled
this function alone, nearly 50 per cent occurred in the "C"
size school, while twice as many "B" school principals
handled this alone as did "A" size school principals. Over
75 per cent of the "A" school principals shared this function
with guidance counselors. In only 25 per cent of the schools
were other building administrators sharing in this function.
The "B" size school principal always shared this function
with his guidance counselors, as did the "C” size school
principal.

-15h-

Pereonnel Reeords
In A5 per cent of the schools the keeping of per-

sonnel records was assigned to the guidance counselors. How-
ever, in one "A" size school this function was assigned as

a clerical responsibility, to a clerk. Except in the "C"
size schools this function was rarely handled alone by the
building principal. Nearly A0 per cent of the "C" size
school principals handled this function alone. Seventy-five
per cent of the principals in the "A" and ”B" size schools
who shared this responsibility, did so primarily with the
guidance counselors. In all other cases of sharing it was
done with clerical personnel. The ”C" school principal '
shared this exclusively with the guidance counselors.

Pupil-Orientation .
Less than 15 per cent of the principals stated that

they handle the orientation of pupils alone, with no dis-
tinct difference in pattern between principals in the different
size schools. .In nearly 38 per cent of the schools prin-
cipals assigned this function almost exclusively to guidance
counselors. One ”C" school principal assigned this to the
student council. No principal either assigned or shared
this responsibility with any Other administrator in his
building.‘

The predominate pattern of administrative handling
of this function was for the principal to share it with

 

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-155-
guidance counselors. This was the case in A5 per cent of
all size schools. In only one instance was this shared with
others, and this occurred in one "A" school, where an assis-

tant principal shared this function.

werk with Persoepel

The administrative functions in the category of work-
ing with personnel were predominately performed (66 per cent
of the cases) by the building principal alone, and there
was no distinctive difference in pattern between the differ-
ent size schools. Less than 8 per cent of the principals
said that they assigned the functions in this category.

After carefully examining the data it is doubtful if more

than 2 per cent of those functions are really assigned for

the following reason. Nearly 78 per cent of those principals
who said they assigned this function, did so to someone in

the district office. Experienced administrators would probably
recognize that a building principal cannot assign a function
back to the person who would have the only authority to have
assigned the function to the building principal in the first
instance. It would probably be more correct to state that
those principals shared with the district office those partic-
ular functions, rather than that the principal assigned them
to the district office. Table 21 indicates the manner in
which principals handled this function.

 

 

 

 

-156-

 

 

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-157-
In any event, in less than 25 per cent of the
schools, principals shared the functions in this category
with staff members. By far the greater majority of func-
tions were shared with the district office personnel.

Selection and Recommendation

Nearly 90 per cent of the principals actively par-
ticipated in the selection and recommendation of personnel,
if one assumes, as it must be assumed, that when the in-
dividual assigns an authority he has transferred to another
the right Or power to act. The predominate pattern of be-
havior indicates that 60 per cent of the building principals
handled this function alone. In the "A" size schools,
only A6 per cent of the principals handled this function
alone, whereas, in the "B" and "C" schools 6A and 69 per
cent of the principals, respectively, handled this alone.
Nearly 13 per cent of all the principals, 60 per cent of
whom are in the "A" size schools stated this function was
assigned to the district office. This function was not
assigned by any principal except to the district office.

In about 30 per cent of all schools this function
was shared exclusively with the district office. In only
one other case of sharing, and this occurred in an "A"

school, was the sharing done with the department head.

Induction and Orientation

The principals indicated that in 50 per cent of

~158-
the schools that they handle this function alone. In the
"A" size schools, 39 per cent of the principals handled this
alone; 61 per cent shared it with the staff. In the ”B"
size schools, 57 per cent of the principals handled this
alone; and 38 per cent shared it with the staff. In the
"C" size schools, 5A per cent of the principals handled
this alone; and 31 per cent shared with others. In all
size schools, approximately 50 per cent of the sharing
occurred with district office personnel. There was no
distinct pattern of sharing this responsibility with other
than district office staff. Sharing was done also with
department chairmen, teachers, or other administrators in
the building. In one "C" size school, this function was
assigned to the teachers association, and the other case

to the district office.

Supepvision
In 98 per cent of the schools the building principal

his responsible for supervising of personnel. In only one
cease was this function assigned, and that one case in a
"13" size school, to the district office. In 92 per cent
of‘the "C" schools; 57 per cent of the "B" schools: and A2
per’cent of the "A" schools, the building principal handled
this function alone. Approximately 33 per cent of the
Phincipals stated that others shared in this function. In

only one case did department chairmen share this function.

-159-
All other sharing was nearly equally divided between the
district office and other administrators in the building.
More than 50 per cent of all the sharing of this function
took place in the "A" size school buildings. Of the build-
ing assistant administrators who participated in this func-
tion, 65 Per cent of them were in the "A" size schools,
and their participation was limited to sharing the function,

it was never assigned to them.

Evaleation '
Nearly 75 per cent of the building principals stated

they handled the function of evaluation alone. There was
no difference in pattern between the different size schools
in the principals' handling of this function alone. Only
one principal assigned this function, and that to the dis-
trict office. It was the same principal who assigned the
responsibility of supervising personnel to the district
office. Of nearly 30 per cent of the principals who shared
this responsibility, nearly 65 per cent of the sharing was
done with district office personnel. In the other case of
sharing, assistant administrators in the building exclusively
shared this function. There was no difference between the

size of schools in the sharing pattern of this function.

Personnel Records
Nearly 73 per cent of the principals in all three

size schools said they alone handled personnel records.

~160-

There was no appreciable difference between these differ-
ent size schools in this regard. In only two instances

was this function assigned, and in both instances to the
district office personnel. This function was almost always
shared with district office personnel, regardless of the
size of school building. Also, the sharing pattern was
nearly the same in all size schools. One assistant prin-
cipal shared this function with the building principal in

one of the "A" size schools.

Substitupe Teechepe
Nearly 50 per cent of all the principals secured

their own substitute teachers. Only 30 per cent of the
principals of the "A" schools handled this alone whereas in
the "B“ school, 50 per cent did so and in the "C" schools,
62 per cent did so. Of all the functions in this category,
this one function was assigned more than any other. Twenty-
five per cent of the principals said this function was
assigned. It was assigned to the district office in nearly
70 per cent of the cases, predominately in the "A" size
schools. Assistant principals exclusively had this function
in the schools in which it was not handled by the district
office. Fifty per cent of the "A" school principals assign
this function, primarily to the district office.

Sharing this function followed no distinctive pattern
in the different size schools. Eight per cent of the sharing

 

 

 

~161-

was done with the district office, and 20 per cent with
.other administrators in the building. One school principal
who shared this function with the district office, did so
with the superintendent's secretary. In sharing this with
the district office, however, it was usually with the assis-

tant superintendent or the coordinator of secondary education.

Inservice ai

In nearly 38 per cent of the schools the function of
inservice training was handled by the principal alone: in
the "A" schools, 5A per cent; in "B" schools, A3 per cent;
and in "C" schools, 15'per cent. This function was assigned
in only 13 per cent of the schools, with the "C" school
principals assigning 60 per cent of all cases. Except in
one school, that assigned this function to a committee of
teachers, assignment was to personnel in the district office.

Of the principals who shared this function, 7h Per
cent did so with the district office. Sharing this function
with the district office occurs in 38 per cent of the "A"
size schools; A3 per cent of the ”B" size schools; and 62
per cent of the "C" size schools. About 25 per cent of
the "A" size school principals shared this function with the
assistant administrators in their buildings. The Teachers
Association shared this function in one of the "C" size
buildings. In only one school, "B” size, did department
chairmen share this function. Two assistant principals in

-l62-
"A" schools shared this function with the building principals.

Counselipg
In the majority of the schools, (65 per cent) coun-

seling was handled by the principal alone. There was rela-
tively little difference in the pattern between the differ-
ent size school buildings. Only 10 per cent of the principals
assigned this function,vand only in the "B" and "C" size
schools. Half of this assignment was given to the district
office. In one school this function was assigned to a committee
of teachers and in another, to the guidance staff. There was
no distinctive pattern of sharing in the different size
schools. It was rather equally divided between guidance
staff, district office personnel and other administrators

in the building, as well as department chairmen. Mere than

50 per cent of the sharing occurred in the "A" size school
building, with various personnel mentioned previously. There
was no distinct pattern of sharing in the "B" and "C" size

schools.

Scheduling
The function of scheduling in all size schools was

predominately handled by the building principal alone, and

no distinctive pattern could be discerned for the different
sizes of schools. Nearly 85 per cent of the principals stated
they handled this alone, with virtually no school principal
assigning this function.

-163-
With the 15 per cent of all school principals who
did share this function, no discernable pattern of sharing
was predominant. Nearly 65 per cent of the sharing occurred
in the "B" size schools, with assistant principals, committees
of teachers and department chairmen. In the "A" and "C" size

schools sharing of this function rarely occurred.

WOrk with Community

The functions in the category "work with community"
as shown in Table 22, were shared by the building principals,
slightly more than were handled alone. In A6.5 per cent of

all replies to all questions principals said they handled
these functions alone; h7.8 per cent said they shared these
functions. Less than 6 per cent of all responses of all
principals indicated that they assigned these functions.
There was no discernible difference in pattern between the
different size schools in regard to assignment. The "A”

size school principals shared functions about as frequently
as they handled them alone, when compared to the "B" size
school principals who shared functions 50 per cent more often
than he handled them alone. The "C" school principals handled
functions alone more than 50 per cent as often as he shared

the function.

Determination of Sehool's Egucation Needs

In 65 per cent of the cases, the principal alone

helped the superintendent determine the educational needs of

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-165-
the school. Rarely was this function assigned, since only
'5 per cent of the principals said they did so. In 33 per
of all schools, the administration of this function was
shared with others. In the "A” size schools, 77 per cent
of the principals handled this function alone. The smaller
school principals in the "B" and ”0” size schools performed
this function alone in 57 and 5A per cent of the cases,re-
spectively. Principals in the smaller schools shared this
function more often than did the principals of the larger
schools. Whereas A3 per cent of the "C'I school principals
shared this function, only 29 per cent of the "B" school
principals and 23 per cent of the "A" school principals did
so. Nearly 70 per cent of all principals who shared this
function did so with the entire teaching staff. Some sharing
was done with fellow building administrators, and in one
district, with a Citizens Committee. Approximately 23 per
cent of the "A" and "B" size school principals shared this
function, and nearly A3 per cent of the "C" school principals

also shared it.

Speeial Repezpe epd Bulletips
Nearly A8 per cent of all principals in all size

schools handled special reports and bulletins alone. Of

this A8 per cent, the "A" and "Ch size school principals did
this in 77 per cent of the schools. In the "B“ size schools,
however, only 50 per cent of the principals said they handled

~166-
this alone. The "A" and "C" size school principals, in 23
per cent of the schools, said they shared this function, as
compared to 50 per cent of the "B" school principals who
shared it. This sharing was done with the total staff, other
buildhng administrators, and to some extent with the district
office. About 50 per cent of the schools shared this func-
'tion with the total staff; about 30 per cent with other ad-
ministrators, one-half of whom were department chairmen: and
nearly 15 per cent with the district office personnel. Two
principals indicated that they shared this function with
administrative assistants in their building.

Conferences with Individual Citizens ,
Sixty-eight per cent of the principals, when asked.

how they handled conferences with individual citizens, said
that they shared the function with members of the teaching
staff. Nearly 85 per cent of the ”A" size school principals
said they shared the function about equally with guidance
personnel, total teaching staff, and their assistant admin-
istrators. In the "B" size schools 72 per cent of the prin-
cipals shared this function in the same pattern as did the
”A" school principal. Only A2 per cent of the smaller school
principals shared this function, largely with their teaching
staff. 0f the 30 per cent of the principals that handled

. this function alone, the "A" size school principals made up
only about 15 per cent of the total; the "B" principal 30

-l67-
per cent of the total, and the "C" principal 55 per cent of
the total. Only one school principal assigned this function,
that being a principal in a small school, who assigned this
function to a committee of teachers.

P. T, A, and Other Lay Groups
The pattern for handling of P. T. A. and other lay

groups was quite similar to that for handling conferences
with individual citizens, previously discussed. Sixty-one

per cent of the "C" school principals; 35 per cent of the

"B" principals; and 30 per cent of the "A" principals handled
this function alone. Only one principal in the small school
assigned this function, and this assignment was to a faculty
hcommittee. About 53 Per cent of all the principals shared
this function. Seventy-seven per cent of the principals

in the "A" size schools shared it; 15 per cent in the "C"
schools: and 65 per cent in the "B" schools. The largest
schools, "A" shared this function in no distinctive pattern,
sharing it with P. T. A., district Office, teachers committee,
administrators in the building, as well as with the entire
teaching'staff. More sharing was done with the entire staff
than with any other group. In the ”B" size school, this
sharing pattern followed the pattern of the "A" schools, that
is, it was shared basically with the entire staff. The little
sharing that the "C" school principals did was with the entire
staff.

-168-
Public Relations Information

The pattern for administering public relations in-
fermatiOn in all schools was about equally divided between
those principals who shared the function, and those that
handled it alone. Of those who handled it alone, the "C"
school principal did so in nearly 70 per cent of the schools,
whereas in the "B" and "A" school they handled it alone in
slightly less than A0 per cent of the schools. About 10
per cent of all principals who assigned this function are
in the "A" size schools where they have specialized per-
sonnel to handle this function. One "C" school principal
assigned this function to a faculty committee.

Slightly more than A0 per cent of all the principals
shared this function with their staffs. Principals of the
"C" size schools shared the function in only 22 per cent of
the schools, as compared to 65 per cent of the "B" size
schools, and 38 per cent in the ”A" size schools. This shar-
ing pattern was quite irregular, though the entire staff
participated in the functionfin nearly 50 per cent of all
schools where the principals shared this function. Also
sharing in the function were teacher committees, the dis-
trict office, other administrators in the building, as well

as a particular teacher.

Reperts to Parents A
Nearly 75 per cent of all principals in all schools

shared this function of reporting to parents. About 65 per

~169-
cent of principals in "A" and "C" size schools shared this
function, as compared to nearly 85 per cent in the "B" size
schools. Predominately, the sharing was with the entire
teaching staff. However, nearly 20 per cent of the prin-
cipals shared this function only with their guidance staffs.
Of the very small per cent of principals who assign this
function, there was no established pattern of assignment to
staff, committees or guidance counselors. Only 20 per cent
of all principals handled this function alone. Only 8 per
cent of the "B" size school principals handled it alone,
whereas nearly 25 per cent of the "A” and ”0" size schools
used this procedure. Rarely did assistant administrators
participate in any manner in the administration of this func-
tion. I

Tee Program of Public Relations
Planning and coordinating the public relations pro-

gram for the school did.not seem in any way related to the
size of the school, or the kinds of staff that was available
to the building administrator. Whereas A8 per cent of the
principals handled this function alone, nearly A5 per cent
of them shared it. There was no difference in the manner
in which the different size schools handled this function.
Nor was there a basic pattern to the sharing. Most prin-
cipals shared the function with the entire staff, though in
some buildings it was shared with other administrators in

-170-
the building, the district office, or in one case with a
single teacher. Nearly one-third of the principals who
shared this function, did so with the administrators assigned
to their building.

WOrk with Funds and Facilities

The administrative functions in the category of "work
with funds and facilities" in 45 per cent of all the differ-
ent size schools were handled by the principals alone. The
reader will note, in Table 23, that the "C" school principals'
decision to handle these functions alone, comprised nearly
A0 per cent of those "alone" decisions. Assigning these
functions in the "A" and "B" schools was about equal. While
these functions were shared in 30 per cent of all schools,
the pattern of sharing did not seem to be phenomenally dif-

ferent in the different size schools.

IBEMEEEEDLJEEBEEEE!
Almost 88 per cent of all the principals participated

in budget making, alone or by sharing the function with
others of the school staff. However, nearly 58 per cent of
all principals said that they made the budget requests alone.
In #3 Per cent of the "B” size schools principals,handled
this function alone, whereas approximately 62 per cent of

the principals in the "A" and "C" size schools handled it

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-172-

Principals assigned this responsibility in only 12
per cent of all size schools. In a school of each of the
different sizes, a principal did assign this responsibility
to an assistant administrator in their building. Two schools,
a "B" and ”C" size school, said this function was assigned
to the district office.

Of the 30 per cent offall principals that shared
the making of budget requests, principals in ”B" schools
comprised 50 per cent. They shared this function with their
total staff slightly more than they did with their depart-
ment chairmen. Only one "B" school principal shared this
function with the district office. The "A“ and "C" size
school principals followed no predominate pattern for
sharing this function. It was rather evenly divided be-
tween total staff, department chairmen where they exist,
the district office, and with other administrators on the
staff.

JManagement of Appropriations
Twenty per cent of the principals said that they

assigned the function of managing appropriations. In all
but one instance this function was assigned to the district
office. One of the largest schools had an assistant prin-
cipal to whom this function was assigned. A

Nearly 53 per cent of all the principals handled
this function alone, with the size of the school not seeming

-l73-
to be a factor. Of the nearly 30 per cent of the principals
who shared this function, the size of school in which shar-
ing occurred did not seem to be related. The "B" school
principals shared this function more often with department
chairmen than with either the total staff or the district
office. The "A" size school principals shared it with
either a curriculum coordinator from.the district office
or their total staff. The smaller school principals in "C"
size schools comprised nearly 55 per cent of those principals
sharing this function, and this sharing seemed to follow
no distinct pattern. Principals of all schools more often
shared this function with the district office than with
their staff, or department chairmen where they existed.

Plant Plepping and Construction

There was no predominant pattern in these schools
for plant planning and construction. About an equal number
of principals said they assigned this function as those who
said they handled it alone. Those who assigned the function
in all size schools, did so exclusively to the district
office. Nearly 60 per cent of those who shared, did so
with the district office. One must conclude that there was
no distinct pattern here and that size of school seemed un-
related as to how or by whom this function was handled. Only
one principal stated that an assistant building administrator
participated in this function.

—174-

Student Insurance Program
Like the previous function, there is no really

distinctive pattern among the schools as performance of

the student insurance program. Thirty-five per cent of

the school principals said they handled this alone, and the
same per cent said they assigned the function. Slightly
more of the "B" school principals than others handled this
function alone or by assignment than do the other size school
principals. Nearly 50 per cent of all the school principals
that assigned this function do so to a director of physical
education. Others to whom the function was assigned were
the school nurse, student councils, P. T. A.'s and the
district office. Among these there seemed to be no clear
pattern of assignment in the various size schools. This
function was never assigned to another administrator in

any size school.

About 25 per cent of the principals shared this
function and in over 50 per cent of the schools they shared
this with the district office. "A" and "B" size schools
comprised 90 per cent of the principals that shared this
function, about equally divided between the two. Other
than sharing this function with the district office, schools
Shared it.with the school nurse, the P. T. A. and other
building administrators where they existed. There was no
distinct pattern of sharing, other than with the district

-175-
office for all size schools. only in two of the "C"
schools was this function participated in by building ad-
ministrators other than the principal.

Plant Maintenance

The principals, in reporting On plant maintenance,
indicated that in more than 58 per cent of all the schools,
this function was either assigned or shared with the district
office personnel. About 25 per cent of all principals said
that they handled this function alone, with the "C" school
making up 50 per cent of the cases.

These principals who assigned this function comprised
about 50 per cent of all the schools. With two exceptiOns
all principals said this was assigned to the district office.
It was interesting to observe that the function was assigned
in one of the "0" schools to a shop teacher. Only one
assistant principal was assigned this function.

The majority of principals who shared this function
with others did so with the district office, and to a lesser
extent with custodians and their administrative assistants.
There was no distinctive pattern of Sharing for the various
size school enrollments. Only two administrators of the A0
schools in the study shared this function with other build-
ing administrators.

School Lunch Progpam
Thirty-seven of the A0 schools had school cafeterias.

~176-
The school lunch program was assigned, in 65 per cent of the
schools, to the cafeteria managers. One assistant principal
was assigned this administrative function as was one teachers
committee. Assigning this function seems not be related
to the size of school. Little sharing was done with this
function for it involved only 10 per cent of the principals
who handled the activity in this manner, and no pattern of
sharing developed. What sharing was done, occurred with
the assistant principal, teacher committees, cafeteria
managers or faculty sponsors.

Only 20 per cent of the principals handled this
function alone. Twenty-three per cent of the "A" size
school principals handled it alone: 30 per cent of the "C"
school principals; and only 8 per cent of the "B" principals.

Intrafiuppal Aetiyitiee
Nearly 30 per cent of all principals who assigned

intra-mural activities did so almost exclusively to their
physical education departments. Only one assistant prin-
cipal in one of the largest schools, was assigned this
function. Most of the principals of all size schools who
shared this function, shared it with their physical education
departments. Two middle size schools shared it with a faculty
committee, while one of the larger schools shared it with
another building administrator. Less than 15 per cent of

the school principals handled the function alone, none of

whom were in the "A" size schools.

-177-

Sn lies and E nt

The functions related to supplies and equipment
are discussed here under the separate headings of specifi-
cations, requisitions, distribution and inventory of
supplies and equipment.

Specificetioes.--The making of specifications for
supplies and equipment was assigned by the principals in
less than 13 per cent of the schools, and in 60 per cent
‘of the cases, assignment was to the business manager of the
school district. Only one assistant principal and one
teacher committee was assigned this function.

Nearly A5 per cent of all principals shared the
administration of this function. They shared it with the
district office, teachers, and other building administrators.
The "B" school principals shared it in 70 per cent of the
schools, whereas the "A" school principals shared it in 38
per cent of the schools. The ”C" school principals shared
it in only 23 per cent of the schools. There was no dis-
tinct pattern of sharing this activity in the different
size schools. The function was shared with the district
office, total staff of teachers, other building administrators,
as well as teacher committees. More principals shared this
function with the business manager in the district office
than in any other manner. Closely fellowing in the sharing
pattern were the teaching staff and other building administrators.

-l78-

Teacher committees played a very minor role in sharing this
function with the building principal.

Principals handled this function alone in nearly
A3 per cent of all size schools. The "0" school principals
handled it alone in 70 per cent of the schools, as compared
to A2 per cent in the ”A" size schools, and 15 per cent in
the "B" schools.

Assistant building administrators were involved
in only three of these A0 schools in administering this
function. One large school assigned this function to an
assistant principal, and in two of the "B” schools they
shared this function with the principal.

Reeeisitiens.--The requisitioning of supplies and
equipment was handled by the principals alone in nearly 75
per cent of all schools, and the size of school seems not
to be a factor in this aspect. Only 8 per cent of the
principals assigned this function and this occurred only
in the larger schools. They predominately assigned this
function to secretarial assistants, though in one case an
assistant principal had this function assigned to him.

Less than 25 per cent of the principals shared this
function alone, primarily in the smaller schools. There
was no distinct pattern with whom this function was shared,
regardless of the size of the school. It was shared with

department chairmen, administrative assistants, teachers,

~179-
the board of education as well as faculty committees. Only
one assistant building administrator shared in this function.

Distribupion.:-The majority of the building prin-
cipals handled the function of distributing supplies and
equipment alone. In the "C" size school, nearly 70 per
cent of the principals handled this function, as contrasted
to nearly A3 per cent in the "A" and "B" size school build-
ings. The small per cent of principals who assigned this
function, predominately did so to clerical and secretarial
assistants, although in one "A" school, the principal
assigned this to the librarian. In two of the larger
schools, this function was assigned to assistant building
administrators. ‘

Those principals who chose to share this function
with their staff, did SO‘With a variety of groups. These
groups included the department chairmen, custodians,
teachers, clerical staffs and other building administrators.
Custodians handled this function only slightly more often
than did department chairmen or the teachers. Nearly 50
per cent of the principals who shared this function were
in the "B" size school buildings.

Ipyeetory.--In the "C" size schools, 77 per cent
of the principals took the inventory alone. In the "A"
size schools, about 45 Per cent handled this alone, and
about 30 per cent in the "B" size school buildings. Only
about 20 per cent of the principals in all size schools

-180-
assign this function, and practically all the assignment
occurred in the "A" and "B"‘size schools. There was no
discernible pattern to whom they assigned this function,
being rather equally divided between clerical, administrative,
teaching and library personnel. In the "B" size schools,
more teaChers were assigned to administer this function
than in the other size school buildings. Two schools assigned
this function to assistant building administrators.

Those principals who shared the administration of.
this function were primarily in the larger schools. More
teachers were used in this function than any other groups
of individuals. However, department chairmen, custodians
and other administrators shared equally in the function.

The "B" size school principal shared it more often with
department chairmen, whereas the "A" size school principal
shared it most often with the entire teaching staff. Of
the groups, clerical personnl shared least in this function.
Only one assistant principal shared in it.

Egpgzpe to Supepiptendent
Nearly 85 per cent of all the principals stated

that they handled this function alone, with no discernible
difference in pattern occurring between the different size
schools. Assignment of this activity rarely occurred. In
One case the principal assigned it to clerical personnel,
whereas another principal assigned it to an assistant

. ~181-
administrator in the building. In the A0 schools, seven
principals said they shared this function with the following
seven different groups of individuals: administrative
assistants, committees, department chairmen, clerical
personnel, teachers, guidance counselors, and the total
staff. Other than the principal handling this function
alone, there was no distinct pattern in handling the func-

tion among the different size schools.

CHAPTER VI

GUIDELINES FOR ADMINISTRATIVE ORGANIZATION AND STAFFING
IN THE JUNIOR HIGH SCHOOL

Organization serves as one means of attaining the
goals of an institution. Administration is the process
of getting things done with others. If the junior high
school is to accomplish its purposes, it must coordinate
the efforts of all individuals within the organization. The
primary function of the building principal is to coordinate
the efforts of the staff for the successful and harmonious
achievement of its objectives. .This coordination of activity
is accomplished through planning, organizing, staffing,
directing, and controlling activities of all individuals
engaged in the enterprise. These processes are not only
essential in the administration of all cooperative enter-
' prises, they are essential for all professional staff
members if they are to fulfill their assignments adequately.

Since the organization of human beings for the
accomplishment of common objectives is as old as civiliza-
tion itself, one might expect that of all the disciplines,
the science of administration would be quite advanced. The
Science of administration that does exist, has been largely

~182-

-133-

developed for the business and industrial world and has its
application to those fields. Must of the existing principles
of organization had their origin in the philosophical frame-
work of business management and they incorporate the techni-
ques, procedures and value judgements necessary for busi-
ness operation. To most educators, however, these principles
are not entirely acceptable as guidelines for educational
institutions, for the value system.of business and education
may in certain instances be different. Thus, it appears
that no methods of administration have been developed that
have universal application.

Education has a value system based on the idea
that it should prepare individuals to preserve and to
further the democratic way of life. The principles of or-
ganization for educational institutions, then, must stem.
from the aim of a free society and an organization so
structured so as to reflect those beliefs. Education then,
is searching for effective and democratic principles of
administration that are applicable to the school organiza-
tion. As these principles are discovered, developed and
applied to the administration of educational institutions,
they will further the basic purposes of education.

Today's society is characterized by revolutionary
improvements in the physical and biological world, but the
social sciences have lagged far behind. Only in rather

recent years has it been discovered and demonstrated that

-18A-
the old heirarchy of autocratic management was not an
effective means of creating productive and cooperative ems
ployees. It has been learned that human resources are
fully utilized when the individual recognizes that his
work is important and appreciated by those for whom he
works. Further, the need to capitalize on the dynamics
of group spirit and create a desirable level of interaction
among the workers has been recognized.

These discoveries suggest that unless there is better
utilization and coordination of activities of people, in-
efficiency and waste of human resources will occur. The
full utilization of human resources by coordinating the
activities of people, so that individual objectives become
translated into group attainment, is in a broad sense the
job of administration. As the quality of administration
improves, the ability to utilize human as well as material
resources will improve. This ability to improve adminis-
tration, however, rests upon the ability to discover applic-
able principles.

It is quite clear that the field of education is
searching for principles that will improve the effectiveness
of school administration. These principles, however, must
serve the unique purposes cf education and cannot be adapta-
tions from business management or other professional groups,
unless the purposes of the professional world are the same

as education. As these principles are discovered it will

-135-
be possible to utilize and coordinate efforts of individuals
for more effective attainment of group activities in edu-
cation than is now possible.

Factors ig Administrative Organization agd Staffing

The functions involved in the administrative or-
ganization and staffing of an enterprise seem to be a sub-
ject of some disagreement among different authorities who
have written on the subject. Since there is no unanimity
on what the functions should be, the approach here will be
to define and describe those factors that most authorities
consider to be most important in the administrative process
of an educational institution. The aspects of functions
were selected and placed where they seemed most logically
related to the main topic under consideration.

Administration of the junior high school has refer-
ence to the techniques, procedures, authority and processes
employed in operating the organization to fulfill its pur-
poses, in accordance with the adopted policies of the local
school district. Administration in this frame of reference
. has two central facets or characteristics: purpose and
methodology. Purposes can be sub-divided into those serving
'the external needs of the organization and those serving
the internal needs.

The external purpose of the Junior high school is
to fulfill the objectives for which it was created. To

-186-
illustrate this point, one of the purposes defined by the
seminar groups was to "help students develop the democratic
skills and attitudes necessary for American citizenship by
appropriate direct experiences." Society expects that as
young people increasingly assume more of the responsibilities
of citizenship, they will develop the understandings, con-
cepts and skills in human relations necessary for social
living in American democracy. Adolescents want to feel
adequate in face-to-face relationships and social activities.
These relationships have reference to not only immediate
relations but to the larger framework of the community:
the Nation and the world. The patriotic sentiments which
pupils have developed in childhood should be augmented to
include a clear understanding of American democracy and
a positive attitude toward responsible membership in it.
If pupils are to acquire skills in democratic living, the
school should provide countless, daily conditions and oppor-
tunities which will encourage them to act upon and practice
the moral beliefs of the culture so that these beliefs may
become for them a consistent and meaningful life perspective.
To acquire democratic behavior, pupils need to be taught
about democracy in the classrooms and in the school, on
all appropriate occasions. most important is to provide
pupils the opportunity for experiencing democratic behavior
in many school activities. Such activities, for example,

as the student government, home room organizations, and

-187-

other similar activities. The influence of the peer group
should be used to foster socially desirable habits, attitudes
and relations. Pupils should be provided many opportunities,
in the school and in the community, to practice skills in
which citizens engage.

Administration, then, serves the external purposes
of the organization by designing, promoting, inaugurating,
and sponsoring activities within the school by appropriate
means, so that the students acquire the skills and attitudes
necessary fer effective living in a democracy. Further,
the administrator and all school personnel, in their under-
takings with pupils, fellow these democratic procedures
they wish pupils to acquire.

The-second purpose of administration is to serve
the internal needs of the organization. {Meeting the in-
ternal needs has reference to the degree to which adminis-
tration is successful in securing the coordination, collective
cooperation, control, motivation, meeting of the minds and
integration of the individuals in carrying out the objectives
of the organization. Perhaps using an analogy will clarify
the connotations of the words used in describing internal
purposes. A symphonic orchestra is composed of many musical
instruments, all necessary to produce the melodic tones of
a given composition. But to produce this tone there must
be harmony-~a simultaneous sounding of a note, on the various

instruments, to fulfill the composer's objectives. Coordination

~188-

to meet the internal needs of the junior high school also
has reference to harmony. To meet its external objectives,
the school needs all the individuals in the organization
to function in harmony. It also requires the individuals
to work together, as though they were only one person, just
as the different instruments of the orchestra sound the
one note for a tone. To secure this one tone, there must
be control of the instruments. So in the administration
of an organization there must be control, to secure effective
action or to restrain. The notes of the music are the
motivators of the musicians to think and to act. Adminis-
tration is concerned with the motivation of individuals
,in the organization to think and to act and to secure a
meeting of the minds on the action. It is also concerned
with integration, to consolidate the individuals into a
single whole, as the instruments in the orchestra are inte-
grated to sound as though they were a single instrument.

The second characteristic of administration at
the junior high school level, is concerned with the methods
the administration uses to fulfill the school's objectives.
Methods are basically subdivided into three aspects: power
or authority: structure; and process. Administrative
power or authority has reference to the right and/or ability
to determine the activities of others within a value system,
whether autocratically as vested in a person or heirarchy;

or democratically, as upon common consent, agreement and

-189-
action. The principal, for instance, cannot direct activi-

ties of others unless he employs some techniques of direct-

ing. These techniques range from.command, the most auto-
cratic and least desirable means of direction, to consensus,
the more democratic and more desirable means, to secure

a meeting of the minds. Administrative structure is the
relationship between functions and personnel. It is based
on the grouping of activities according to their similar I
characteristics and significances. An administrative
structure is designed for the purpose of coordinating and
facilitating the accomplishment of objectives. Structure
is also concerned with the authority relationships in the
organization.

In the study of the administrative organization
and staffing of the junior high school, the basic concern
is with that aspect of administration which is called pro-
cess. Process has to do with planning, organizing, staffing,
directing, controlling, and evaluating, to fulfill the ex-
ternal as well as the internal purposes of administration.
These are the principal functions that most authorities in
business and public administration agree that all admin-
istrators must perform, regardless of the size or kind of
institution or enterprise. A function is a natural or
characteristic activity of a thing. Applied to the junior
high school, "function” refers to an activity or activities
that the administrator must perform.

-190-

The functions of planning, organizing, staffing,
directing, controlling, and evaluating are all interrelated
and simultaneously occurring in the junior high school. They
never occur as isolated functions in the process of admin-
istration. For example, direction occurs with the staff,
for their control, evaluation, and place in the structure
of the organization, or to assist them in fulfilling a part
of the basic objectives. However, it will be necessary
fOr a more intelligent presentation of these functions to
treat them as though they were separate processes, to exp
plain their significance to the administration of the junior
high school. -i

The purposes of an institution can only be achieved
through people. People are the subject of administration,
not the buildings, the program of studies, or the policies
of the school district. The buildings, the program of
studies, the policies, are the means or facilities whereby
the purposes of the organization are achieved. They are
"things," inanimate objects to be changed at will, or re-
sources to be utilized or consumed to serve the desired ends.
While the principal is concerned with the policies and the
curriculum, his primary concern is, or should be, with the
people who report to him, making certain they understand
the purposes of the junior high school, that they act in
concert, and that what they do is coordinated in terms of

time and resources. Therefore, administrators are always,

-l9l-
or should be, concerned with the human resources, through
which the purposes of the institution are accomplished.

The necessity for such harmonious action is well
established. Conflict in practice or intentions must be
avoided. Coordination is impossible, however, without an
acceptance by all personnel of the predominate goals of
the institution. If the principal of the school is not
sure of its basic goals he cannot secure the coordination
of staff efforts. Unless each member of the staff has a
clear understanding of the institutional goals, he will be
forced to be guided by his own concepts of what the purposes
are. Should this be the case, the tendency is for individuals
to be more concerned with self aggrandizement than broad
institutional purposes. Effective coordination cannot be
achieved by command from the administrator. Coordination
must be achieved through the interpersonal relationships
of people in the institution. Through personal contact the
staff members exchange ideas, prejudices and purposes, and
with the understandings gained by this group process, find
ways to achieve the institutional, as well as personal
goals. 'Barnard stated this idea of personal interactions
as: A

The group as a social concept persist because of the

fact that significant relations between persons in
groups are regarded as those of systematic personal

-192—

interactions. In each cooperating group, the cooper-
ative acts of persons are coordinated.l

The ability to coordinate effort is without doubt
one of the prime requisites of an administrator. However,
securing coordination in an educational institution is
related to the value system of education, not the value
system of the business or the industrial world. Education
has as its purposes the preservation and furtherence of
the democratic way of life, founded in the values of the
culture in which it exists. What is desired in coordination
' in schools, is what Dimmock wants as a test of management:
". . . whether the organization has a life and a spirit
which excite the best efforts of everybody in it."2 i

The functions of the administrative process of
primary concern in this study are organizing and staffing.
These functions are not isolated from other functions in
the administrative process and it is necessary to show briefly
their relationship to planning, staffing, directing, control-
ling and evaluating. These processes are treated in the

remaining sections of this chapter.

 

1Chester I. Barnard, The Functions of the E cutive
(Cambridge, Mhss.: Harvard University Press, I933), p.

aMarshall E. Dimmock The Executive in Act on (New
York: Harper and Brothers, Pu s ers, , p. .

-l93-
Planning

Planning is fundamentally a task of choosing. Dim-
mock defines planning as
. . . a process involving the careful arrangement of
known factors in the area of one's jurisdiction, fol-
lowed by the testing and possible_modification of the
program in the light of surrounding and conditioning
circumstances.3 ‘
If there were no choosing in objectives,policies,programs
or procedures, planning would be so inflexible as to hardly
exist. Planning is an intellectual process, the conscious
determining of courses of action. well considered planning
tends to direct the activities toward the accomplishment
of basic goals. Without planning, action would probably
become random activity and the organization would surely
eventually disintegrate.

It is often forgotten that wide participation in
planning is important in an institution. Every individual
is important in the institution and should be informed of
all plans affecting his area of authority. Thus the in-
dividual is better able to make plans for his activities
as a part of the major plan. Dimmock has this reaction to
participation in planning:

. . . planning is something in which everyone in the

organization is concerned. Major contributions to
the formulation of goals and the determination of

31bid., p. 125.

-l9h-

strategy frequently originate far down the line in

some obscure employee whose ideas are then passed up

to the top. Planning is a two way artery of traffic.

. . . It is the nucleus of the administrative process.h

In all institutions planning is a continuous process

and in the junior high school the principal must be con-
cerned with three kinds of planning. Planning the goals
for which the school was established and the objectives ex-
pected to be accomplished is one type of planning. The
purposes of this type is to insure that the school meets
the needs of the pupils and the community it serves. If
these needs cannot be met, the school will become obsolete
and then reorganization of the institution should take
place. The administrator must also be concerned with the
second kind of planning. This has reference to determining
the activities required to achieve the school's purposes,
the grouping and assignment of activities into positions,
the assignment of authority to carry out the activities,
and the means of coordination of positions. The principal
must plan that kind of structure which will best achieve
the purposes of the school. The third kind of planning is
baSically identified as administrative planning. This in-
volves analyzing and determining in detail how best to achieve

the broad objectives. The program of studies, the facilities,

“Ibide , p. 1230

~195-

and staffing, are all a part of administrative planning.
Dale has defined organization planning as: ". . . the pro—
cess of defining and grouping the activities of the enter-
prise so that they may be most logically assigned and effec-
tively executied."5

Planning is not a process separate from other func-
tions of administration. It is not the kind of work a
theorist does locked up in an office.' Planning is a pro-
cess that must be utilized every day. It is a process
whereby the administrator combines his knowledge with his
authority, to achieve the objectives of the school.

Organization

The need for organization arises when one individual
in an enterprise is unable to perform all the functions
necessary to keep the institution in Operation. Barnard
has defined an organization as: ". . . a system of con-
sciously coordinated activities or forces of two or more
persons."6 An organization then is a system composed of
the activities of individuals. Organization occurs, accord-

ing to Barnard, when:

5Ernest Dale, Planning and ggvelopinfi ghe Compagy
Organization Structufe ew- or : er can agement 330-

c at on, ’ p.

 

6Barnard, o . cit., p. 73.

-l96-
-. . . (1) there are persons able to communicate with
each other (2) who are willing to contribute action
(3) to accomplish a common purpose. The elements of
an organization are therefore, (1) communication (2)
willingness to serve (3) common purpose.7

The organization will continue to exist if there
is an equilibrium of these elements in the internal system.
By definition, then, there can be no organization without
peOple. It is clear that willingness of people to contribute
effort to the organization is indispensable. Willingness,
in organization, has reference to the surrender of personal
conduct or of depersonalization of personal action, for
organization action. Without the need to accomplish a
common purpose an organization disintegrates or ceases to
exist. To accomplish a common purpose becomes dynamic
through communication. The purposes must be known and they
must be communicated.

In any organization, there are also relationships
of persons which occur in what is identified as the in-
formal organization. Barnard8 describes organization as
being informal when the interpersonal relationships are
without conscious purposes, even though common or joint re-
sults may come from them. He also states that informal

association precedes formal organization, and that fermal

organization creates additional informal organization.

 

71bid., p. 32.

8Ib1de, pp. 116-1180

 

~197-

One of the essential needs of the individual is
association, which requires interaction between individuals
not provided by the formal organization. It is through
:1nformal organization that one ”learns the repes” and the
patterns of behavior that develop in any organization. One
«of’the most significant informal relationships almost in-
‘variably found in any formal organization is referred to
as the "grapevine." The grapevine is the informal means
of communicating knowledge, not Openly available to the en-
tire group, either because it is confidential or because
the fermal method of communication cannot be used for this
purpose.

Since informal organization is essential to individual
satisfaction'and.to the formal organization, administrators
should recognize and utilize this process. Since man is a
social animal and organization a social institution, the
recognition of the elements of group behavior, their patterns
and motivations are requisites to the success of a social
undertaking.

In constructing the administrative organization of
the junior high school, there must be some decisions regard-
ing its structure. The important elements to be considered
in developing the administrative structure are: line and
staff authority relationships, the assignment of activities,
span of control, and councils. Organization has as its central

concern the grouping of these elements and of the human beings

~198-
tflho participate in meeting the objectives of the school.

Line 39d Staff

One of the basic issues in any organization concerns
‘bhe decision made regarding the nature of authority rela-
‘tionships. The line authority concept is a basic theory
of personal interrelationships within the organization. It
:is a pattern of operation which delimits the bounds of
taction of a particular individual and outlines the way he
must work within that area. This concept holds that authority
exists in a heirarchial structure from the head of the or-
ganization, through the organization, in a series of echelons
or layers of sub-administrators to all individuals in the
organization.

This rigid concept of line authority has been re-
jected among most educators, though some school systems
still foster this basic organizational pattern to a degree.
Schools organized on this basis tend to exhibit an authori-
tarian pattern of relationship among personnel and exercise
authority rather dogmatically along vertical lines. The
rigid line organization connotes that the administrator is
the person to recommend and initiate ideas and innovations
in the school system. Communication within the organization
is almost always one way-~from the top down. The rigid
insistence and uniformity prevents making adaptations in

education for the needs of pupils. As Koopman describes it:

-l99-

‘"The inevitable result was to create confusion, conflict,
and loss of efficiency."9

Staff relationships do not stand in a direct line
relationship of authority, but are primarily advisory or
consultative in nature. The staff performs functions which
are not a part of the line relationship. Advisory personnel
are specialists who supply expert assistance when it is
requested but have no power or authority except that derived
from their specialized knowledge. The reading consultant
or speech correctionist in a school would exemplify this
staff position. The coordinative personnel operate at the
top administrative level to assist the administrator and
relieve him of a number of minute details of his position.
The assistant to the principal, who has no authority over
teachers but might represent the principal in working with
teachers on a problem, would be an example of one in a
coordinative position.

In the organization of the junior high school, the
lines of authority relationships should be decided before
the administrative organizational pattern can be determined.
These decisions will determine the organizational pattern
under which the school's administrative staff operate. In all

90. Robert Koopman, Alice.Miel, and Paul J. Misner,
JDemoc ac n.8c ool ministration (New York: Appleton-
Century‘, 00 , I.» g p. e

-200-
school systems, real lines of authority exist (and should)
from the teachers to the principal. The organization cannot
be coordinated without a pattern of authority. The real
problem is to organize so that authority operates according

to accepted values and belief of our open society.

Assiment of Activities

Determining the administrative organization of the
Junior high school has to do with the assignment of activities
or functions to fulfill the purposes of the school. Every
organization has internal activities to perform to meet its
external goals. It is important to identify that which
needs to be done to carry out the purposes of the school
and to eliminate those activities unrelated to the school's
purposes.

An important decision must be made relative to the
organization structure to perform these functions. One
approach to the problem might be to assign these activities
in terms of the skills possessed by members of the adminis-
trative staff. Milward has suggested that:

Organization must visualize a designed pattern of posts
or jobs, into which people are fitted and the allocation
of duties which is capable of being performed in each
post. The duties wou d be grouped into convenient posts,
according to the nature of the work to be done, not

according to the abilities of staff who may be immedi-
ately available.10

\

10

G. E. Milward, An A ach to Mane eme t (Cambridge,
Mass.: Harvard University Press, I937}, p. 53.

-201-
The practice of grouping activities together, those activi-
ties which are similar, is both apparent and logical. De-
termining what needs to be done and then what skills are re-
quired, the administrator can then group them together.
Positions within an administrative structure and the functions
assigned to these positions can be determined either by a
logical statement of the purposes of the organization or
the assignment of functions to achieve these purposes or
a distribution of the functions to individuals within the
organization who have particular strengths. There is disa-
greement in the literature in regard to this question. On
one side of the issue Millett states:

Unfortunately, organizational theory does not ordinarily
recognize the personality factor. In reality, this is
apt to be important if not a controlling consideration
in determining the organization structure of any agency.
The desire or need to accommodate a certain individual
or because consideration accorded him may secure more
important advantages. . . . In the present state of
knowledge of public administration, it is probably as
sound to pick key individuals and build the organiza-
tion around them as it is to establish the administra-
tive structure and then seek individuals to fill the
key posts.11

Urwick stated a contrary point of view as:

If he [the organizer) starts with a motley collection
of human oddities and tries to organize to fit them
all in, thinking first of their various shapes and
sizes and colors, he may have a patchwork quilt: he
will not have an organization.12

11John D. Millett, Workin Conce ts of Dr anization
(New York: Prentice Hall, Inc., f5h5), pp. IKE-153.

12L. Urwick, The Elements of Administration (New York:
Harper and Brothers, 4 , p. 37.

~202-
The decision in regard to this particular issue in organi-
zation would certainly develop the extent to which one might
generalize regarding administrative organization in the
junior high school.

Grouping of Activities
To adequately perform all the necessary administra-

tive activities of a junior high school enrolling between
700 and 900 pupils, it is unreasonble to expect the prin-
cipal of the building to achieve this alone. But providing
other individuals, to assume some of these activities, would
continue to restrain the functioning of the principal unless
there were a grouping of activities and administrative asso-
ciates into departments or divisions. This structuring

of organization makes it possible for the principal to

more effectively direct the organization effort to fulfill
the purposes of the school.

'The most widely used procedure in grouping activities
in most organizations is by function, though not the only
way. This functional departmentalization assures that major
activities are performed, that the administrator is follow-
ing a logical and rational grouping of activities, and takes
advantage of occupational specialization. The essential
consideration must be the coordination of all internal ac-
tivities in a harmonious relationship to serve the external

80313 e

-203-
The issue of departments or divisions of work in
most junior high schools seems to be centered principally
in the instructional program of the school, though not ex-

clusively in that area.

Coungil and Committees
One of the most widely used, if not the most con-

troversial device of organization according to some author-
ities, is the committee. A committee or council is a group
of persons to whom, as a group, some matter is referred.
Committees differ as to their nature. Some committees

on occasions have authority to make decisions, whereas
others serve as advisory in nature to an administrator. A
committee may also be used by the administrator to receive
information.

One of the most important reasons fer having come
mittees or councils in an organization is the advantage of
gaining group thinking, reaction and judgments. Few people
will argue that a group of people could not bring a wider
range of experience, a greater variety of opinion, a more
thoughtful probing of the various facets of a complicated
problem, than could a single individual. Since organizational
goals can only be achieved by people, administrators are
cognizant that the subjections of policy matters to a group
leads to better cooperation, coordination, and understanding.

The council of administrators in a school is extremely useful

hm”

 

 

 

-204-

in reaching agreement of the individual's place in the plan,
for pooling authority to plan a program involving several
departments, and serves as a valuable means of communication.
All the members interested in a problem can learn of it
simultaneously, instructions can be given, and clarification
made, if necessary. Councils also serve as a means of
affording opportunity to achieve wide participation in the
decision-making process. Those who participate in planning
or decision-making will more readily accept and execute
ideas.

While advantages have been stated for councils and
committee activities, there are some disadvantages. Such
disadvantages include slow action and decision making,
that decisions represent a norm of the group, or that in
reaching a consensus, a weak decision lacking.in positive
direction is produced. Despite the disadvantages cited,
the democratic tradition in American social life, in addition
to the desire to have coordination and cooperation in school
organization, school administrators find group participation

most valuable in the administrative process.

S f Co trol
Lepawsky, has defined the principle of span of

control as: ". . . restricting the level of authority to

the number of supervisors immediately subordinate to a

-205-
number small enough to be effectively directed and coordinated
by one man."13 The decision to be made about the span of
control is one with which every organization must be con-
cerned and must determine how many associates with whom
an administrator can effectively work. Whether this
number should be small, from four to eight persons, or
larger, from ten to fifteen, seems to have no unanimity
of opinion among various authorities. Urwick, has long
contended: ". . . no superior can supervise directly the
work of more than five or at most six subordinates whose
work interlock."1h A contrary point of view was expressed
by Dale when he stated:

Detailed studies on the span of control at Sears,

Roebuck and Company very definitely showed the superi-

ority in operating efficiency of a large span of con-

trol, provided subordinates are of high competence

and self reliance.15

The decisions regarding the span of control has

obvious implications for organizing and staffing at the
junior high school. Per example, if Urwick's measure of
control were taken literally, the position or positions in

administration directly assisting the junior high school

.

13Albert Lepawsky, Administration (New Ibrk: Alfred
A. Knopf 192.9). p. 21.7. _._._____..__.._.

:bUrwick, op. cit., p. 53.

15Earnest Dale, Plannin :and Develo t Com an
Or an a ion St ct e ( ew‘ or or can nagement 330-
c at on, , p. .

-206-
principal would most certainly be with a line relationship
to reduce the number of personnel reporting directly to
the principal. On the other hand, as the trend in admin-
istration seems to be toward less strict supervision of
personnel is applied to the situation, the possibility of
excluding Urwick's stated span of control might place one
or allassistants to the principal in a consultative rather
than a line position relationship to teachers.

Miles

The function of staffing has reference to those
activities involved in personnel management. The major
personnel activities of concern in the junior high school
are: staffing patterns, the interrelationship between
staffing and organization, and selecting the staff. Staff-
ing as used here has reference only to the administrative
personnel in the school and never to teachers or non-
instructional personnel. Every school has an administrative
staff of some sort to perform.the activities to keep the
school in operation. These staff positions are related and I
perform different services in the schools in different ways.
There can be, and are, many different criteria, each for a
particular purpose. .

It was assumed that the basic purposes of the ad-
ministrative staff was to improve the quality of the in-

structional program. The functional efficiency of the staff

-207-

depends upon its operational patterns, which are derived

from the basic organizational concepts. At the present

time many schools are administratively staffed as though

education were a series of more or less unrelated processes.

Determiging Staff Positions

To improve the quality of the instructional program

in the junior high school, administrative staffing should

not be undertaken until the following suggested steps have

been completed:
Step 10
Step 20

Step 30

Step A.

Step 5.

 

16Ada

Define the objectives of the school.
Identify the administrative activities

that are necessary to carry out the defined
purposes of the school. I

Relate the necessary functions of admin-
istration to Specific administrative
positions.

Develop a job analysis and job description
to which these functions might be assigned.
Develop an organization plan for relating
the positions to accomplish the purposes
of the school.16

ed from: Council for Administrative Leader-

ship, Io Sc ool and taffin (Council for Administrative

Leaders p,

any, ew or : 1957), pp. lh-ZA.

-208-

Selection of Staff Personnel

After the complete identity of a staff position is
known, the next step is to find and employ qualified per-
sons for the position. The bringing together of a job
and a qualified person requires considerable effort and is
actually the practical formulation of good human relations.
There are important considerations to be taken into account
in the selection process and these considerations require
analysis and careful evaluation of the applicant. There
are many techniques available for this purpose, including
the development of the sources of supply, application forms,
interviews, references and tests. It seems unnecessary to
explain these techniques for the reader is well acquainted
with these items. .

Personnel should be selected solely on the basis
of qualifications for the position. The effective opera-
tion of an organization depends on the services of a capable
staff. To select such a staff is a major function of ad-
ministration. No effort should be spared to secure for
each position the best qualified person. The important
steps in selecting personnel are: (l) determining what the
job is, describing in some detail the authority and obli-
gations; (2) determining the qualifications needed to carry
out these activities and obligations: (3) selecting from
all candidates the person best able to perform the activities

-209-
and carry out the obligations involved.

Interrelationship Between Staffing and Orgggigation

Most schools have constructed their administrative
organization by starting with the staff which it has and
building around them, instead of beginning with a plan for
the best possible organization to accomplish its objectives
and making necessary modifications for the human factor.
Organization must, of course, operate with people. But an
organization built around available personnel, with their
possible lack of suitability and shortcomings for some
positions, can hardly reflect a scientific grouping of
activities and logical allocation of authority; more im-
portant, the structuring of the organization on present
personalities tends to be perpetuated, even after the in-
dividuals have severed their relations with the organiza-
tion.

It is important that the basic decision be made
relative to the design of the organization prior to the
consideration of staffing. As Urwick has said:

Lack of design [in organization] is illogical, cruel,
wasteful, and inefficient. It is illogical because
the design of the structure must come first. It is
cruel because . . . the main sufferers from a lack
of design in organization are those individuals who
work in an undertaking. It is wasteful because . . .
unless jobs are clearly put together along lines of
functional specialization, it is impossible to train
new men to succeed to positions as the incumbents

are promoted, resign or retire. It is inefficient
because without dependence on principles, administration

-ZlO-

reverts to personalities, with the resultant use of

company politics . . . fOr a machine will not run

smooth y when fundamental engineering principles

have been ignored in its construction. 7
It is essential then prior to beginning the process of
actually staffing positions, to determine the organization
pattern of the relationship of positions. The process de-
scribed earlier in this chapter is a suggested.method of

attacking this problem.

St Pa terns
After the decision has been made relative to group-

ing the administrative functions to form positions, a
title can be attached to these positions which will suggest
categories that underly the organizational concepts of the
staffing pattern. The administrative staff might be or-
ganized vertically or horizontally in the junior high school.

i A horizontal staffing pattern would be indicated
'if the titles of the administrative positions would be as:
assistant principal for instruction, coordinator of stu-
dent affairs, or coordinator of instructional materials.
This is called a horizontal pattern because the decision was
made to broaden the scope of the administrative responsi-
bility to encompass all subject matter or activities by
functions for the total junior high school program.

 

1 .
7L. Urwick, The Elements of nistration (New
York: Harper and Brot ers, , p. .

-211-

If after examining the administrative functions to
be performed it is the decision that the functions could
best be performed by having titles of positions such as:
head of the English department, mathematics department
and_the like, it would suggest a vertical organization.

This means that the decision was made to narrow the scope
of the subject matter and the activities handled by each

administrator, but would also have greatly increased the

number of individuals or positions to perform these func-
tions.

It is possible to combine these two concepts in
one organization. For example, there might be a department
head in physical education, but an assistant principal
for business affairs. It is more difficult to have a multi-
plication of positions with the horizontal pattern because
it does not lend itself to sub-division into separate sub-
ject areas.

Another characteristic of staffing patterns involves
the decision made about the use of line and staff concept.
'This concept of line authority recognizes the gradation of
authority in a scale or series of steps. For example, if
the decision is made to staff the school with a principal,
assistant principal, and department heads, each with direct
line relationship over classroom teachers, then the staffing
pattern can be typified as pyramidal. This indicates
there are levels of authority in the administrative

~212-
organization of the school through which the teacher must
operate.

If there are not layers of authority between the
classroom teacher and the building principal, this would
indicate a flat administrative organization. This connotes
that there are no intervening authority relationships be-
tween the_principal and the teachers. It is possible after
examining the functions to be performed, to decide to have
a position in the school with the title of assistant prin-
cipal for instruction. His function would be that of a
consultant or coordinator, to assist teachers in improving
the instructional program, but would have no line authority
over the teachers. This could be termed a staff position.
The individual would exert assistance when called upon,
but would have no power or authority, except that derived
from his specialized knowledge.

There is a definite relationship between staffing
and organization, and experience would indicate that organi-
zational patterns make a difference in the ways in which
schools are administered and the effectiveness of the work
the school can accomplish. Whatever the staffing pattern
the administrator follows, it should be kept in mind that
he must be alert to malfunctioning of the organization.

All organizations must keep growing and changing with the
result that structure must be flexible. Organizational

patterns and staffing positions should never be considered

'.‘

-213-
settled for all time.

Direction

After decisions have been made on organization
planning, the organization design and the staffing completed,
the institution is ready to Operate. The term."direction” 4/1
when used to describe one aspect of the administrative
process in its simplist terms, is concerned with getting
things done in the organization. In the junior high school,
many individuals consider it to be the principal's responsi-
bility to get things done. This concept, however, fails
to realize the importance of the activities of the total
professional staff in accomplishing objectives. School
administrators then, working with the staff in an organi-
zational framework, accomplish the purposes of the school.

Mbst educational authorities agree that directing
the activities of the instruction staff is perhaps the most
critical and important of all aspects of the administrative
process. It is necessary to fulfill the internal as well
as the external purposes of the school. Since the means,
methods, and techniques of directing staff functions to
accomplish the objectives of the school so critically
affect the instructional personnel and the instructional
program, it seems wise to explore to some depth the activity.
of directing. Directing as applied to the schools is con-
cerned with concepts of leadership, power, authority and

-21“-

responsibility, and communication.

Leadership
Wiles defines leadership as: ". . . any contribu-

tion to the establishment and attainment of group purposes."18
In such a definition, leadership is conceived as a function,
to be exercised and contributed by anyone who possesses the
requisite.capabilities in a given situation. This view is
in opposition to the concept of "status" leadership, by
official position. Leadership is a quality of group activity
and a person cannot be a leader apart from.a group. Leader-
ship is an interaction process and seeks to direct the be-
havior of others toward a particular end._ Leadership, then,
is not to be thought of as a function of one person, but
a series of functions necessary to the productive operation
of a group and performable by any member of the group
competent to the task.

Applying this leadership concept to the adminis-
trative process of directing, it has application to the
role of the principal in the way he influences the thinking
and actions of the staff in certain directions. Teaching
is essentially a creative endeavor. Creativity is a quality

possessed by the individual. Creativity results from the

 

18Kimball Wiles, Su rvision fer Bett r Schools
(Englewood Cliffs, N. J.: Bgentice Hall, Inc., I533}, p.

29.

-215-
releasing and developing of the capacities of each individ-
ual. The creative teacher, in order to remain creative,
must have a principal attuned to the process of group inter-

action. As Campbell stated it:

Helping teachers to be creative calls for a different
kind of administrative leadership from helping routine
workers learn accepted ways of performing tasks. The
administrator of creative workers should think with
staff members, not for staff members. When a creative
worker speaks, he should give expression to his own
decisions, not voice decisions that are made for him.19

 

When the administrator thinks £Qg_teachers it repre-
sents an authoritarian point of view, whereby the making
of decisions for a group is placed in the hands of one per-
son. Thinking with the group, a more democratic approach,
the administrator guides and coordinates the group decision-
making process.

Directing in a democratic institution then, is not
done by command or order, but by releasing the capacity
and collective ability of the group, not forcing the group
to acknowledge the leader's wisdom or power. Democratic
leadership is based on the assumption that the group has
the right and capacity to make its own decisions. The
function of the leader is to help the group do so in the
toast way possible. Democratic leadership which releases

 

l9
Clyde M. Campbell, "A Democratic Structure to
Further Democratic Value," Pro ressive Education, XXX
(November, 1952), p. 27.

-2l6-
the creative ability of teachers is a process in which per-
sons concerned and affected by decisions share in the process
of shaping them. A clarified perspective of democracy de-
mands cooperative interaction within a social group.

As the school staff thinks and plans together in
an_atmosphere of mutual trust, confidence, and respect for
the individual, the best thinking of all will influence
group behavior and develop wholesome decisions. Education
can best be improved by the leadership of ideas and values,
rather than by leadership by status or position.

The kind of direction needed in the Junior high
school is that type which will produce the most promising
programs of instruction for the pupils; which emerges as
the administrator rises to the challenge to free teachers
so that they may contribute to the leadership process.
When administration is conceived as a group process, with
the staff, it results in more significant learning for
pupils. It then becomes an instrument to free teachers to

carry out their important responsibility to the pupils.

1919.:

To accomplish the purposes of the organization there
must be interaction among individuals, between individuals
and groups, and between groups. Groups and individuals
cannot interact in random.patterns of behavior and at the
same time accomplish organizational goals. To accomplish

~217-
‘the Organizational objectives this interaction must be
structured in some design and activities must be coordinated.
The coordinating element which underlies this integration
is power. Power is the element which sustains organization
and.structure, and gives order to organization activity.
Power was defined by Follett as: ". . . simply the ability
to make things happen, to be a causal agent, to initiate
change."20 Power is in the group and expresses itself in
intergroup relations, and used in this way has reference
to its sociological meaning. It is a function of the or-
ganization of associations and the structure of society
itself.

Individuals who direct or administer activities
with.an autocratic or "power over" concept, which is the
use of power in its psychological sense, have concluded
that their job is to decide, order, or command the staff
because of status position and that the status should be
respected. Thus implying that opinions, knowledge, and intel-
ligence is superior to others in the organization and that
the administrator is above the group. As Wiles describes
the behavior:

A leader in a "power over" situation wants people to

give unquestioning support to his policy. To question
is to challenge, and a challenger must be subdued. . . .

 

2OIMary Parker Follett D amic nistration (New
York: Harper and Brothers, léb . p. .

-218-
Certain members of the staff are delegated certain
responsibilities. If they do not do what they are
told, they are punished by such means as reprimand,
decrease in authority, failure to receive an increase
or, if the offense is serious enough, replacement.21
Mbst educational authorities have rejected the
authoritarian concept of directing by "power over." They
advocate a more democratic concept of directing, as con-
cerned in a "power with” approach. This change in approach
to directing activities was expressed by Pollett as:
Power is now being thought of by some as the combined
ca cities of a group. we get power through effective
re ations. This means that some people are beginning
to conceive the leader . . . as the one who knows how
to relate these different wills so that they have a
driving force. He must know how to create a group

power rather than to express a personal power. He
must make the team.22

The concept of directing as "power with" the group suggests
that the administrator in this setting has as his role the
task of drawing out the capacities of all individuals in

the organization so they fully participate and make their
maximum contribution to the effectiveness of the organi-
zation. When the principal of the junior high school operates
on the basis of a "power with" concept, many members of the
staff have the opportunity for leadership. Each staff member
on the appropriate occasion is called upon to exert leader-

ship in proportion to his specialized skill area. On these

 

21Wiles, op, cit., p. 162.

22
Follett, op. cit., p. 2&8.

~219-
occasions, the principal functions to coordinate the activi-
ties of the group and the group has power.

Group power, then, is the total capacity of the
staff to accomplish the institutional goals through the
interaction of the group under the leadership of the prin-
cipal. The effective principal in this case is the one
who can direct and coordinate the separate individuals and

their abilities so they become a driving and unified force.

Authority
The term "authority" in administration has many
different connotations to individuals. Authority is used
in this presentation not in its authoritarian connotation
of power residing in the role of the principal. Mbst boards
of education have the conception that authority is considered
to be inherent in a leadership position, and the building
principal has authority because he is the principal. To
many authorities in administration, this autocratic concept
of authority residing in a position or one which can be
legally conferred, is not acceptable. As Follett stated it:
. . . arbitrary authority is diminishing, surely an
indication that more value is being put on a scientific
method. The tendency today is to vest authority in

the person who has the most knowledge of the matter
in question and skill in applying that knowledge.23

 

2
31bid., p. 118.

-220-

This is not to imply that an official leader does
not have a role to perform. It is his official responsi-
bility to become a part of the group. Further, some one
must take the initiative to help the members of the staff
become a unity. The official leader is assigned this obli-
gation by his appointment to the leadership position. The
basic question is the manner and concept in which the prin-
cipal uses authority to achieve this unity as the official
leader. Miel contrasts the autocratic and democratic leader
concept of authority as:

Believers in democratic leadership have an entirely
different concept of authority from that held by those
who pin their faith on an elite. With the believers

in an elite authority is something to begin with;

with the believers in democracy it is something that
one ends with. With the elite group authority resides
in a person by virtue of position they hold: the

view of the democratic group is that authority is dis-
tilled anew as persons in different capacities learn

to work together and as responsibility of various kinds
is placed on different shoulders. The democratic theory
is that, in the last analysis authority resides in the
group, although it is delegated as occasion demands.2h

Frequently one reads in the literature that the
principal should "delegate authority" to an associate ad-
ministrator» Many authorities object to the statement on
the grounds that it assumes that an individual has the ”right"
to all authority and can slice off a portion and give it to
another. Pollett reacted to this by stating: ". . . authority

2h

Alice Mflel, Changing the Curriculum (New York:
Appleton-Century-Croft, nc., A , p. .

-221—
is inherent in the situation not attached to an official
position."25 Thus one does not delegate authority as
though it were a "thing" or an ”object" to be passed around
among the staff.

The concept of authority that should apply to the
junior high school might best be stated by quoting from
Miel on the subject, when she stated:

While authority resides in the group in a very true
sense, it needs a leader to help it take form.and
direction in goals and commitments to action. . . .
Thus authority is a function of the situation, of

which the group, the problem, ghe setting, and the
leader are interacting parts.2

Raspggsibilipz

Individuals who have a traditional concept of re-
sponsibility hold that final authority for all matters is
placed in the administrator at the top of the power echelon.
In the junior high school, the principal under this concept-
of responsibility is ultimately responsible fer everything
that happens in the organization. Though he assigns ad-
ministrative functions to his associates and staff to be
performed, nevertheless should anything go wrong, all re-
sponsibility is ultimately the principal's.

 

25,0116tt' 02. 012., p. 1500

26
IMiel, o . cit., p. 65.

-222-

A contrary point of view, considered by many author-
ities to be more in keeping with our democratic value system,
holds that since leadership is not confined to those who
hold a status position in the organization, responsibility

can be shared and rests with the functions to be performed.

The structural design of the educational system in
most communities has conflicting value systems from the one
held by the board of education, and the value system held
by the professional staff of the school. The board of
education usually has a concept of responsibility which
reflects a traditional point of view, more favorably dis-
posed toward autocratic behavior as a result of their de-
sign of the administrative structure of the school and their
defining the role of the principal.

Contrasted to the point of view of the board of
education on responsibility is the view of most of the pro-
fessional staff, which holds that authority and responsi-
bility stems directly from the cooperative decisions of the
group. In their concept of shared leadership, their accep-
tance of group responsibility is accepted because they are
responsible for contributing ideas, helping to reach basic
agreements of the group; joining in the establishment of
plans and accepting and completing assignments which grew
out of their group planning. Because they have shared
the authority, responsibility is assumed to be a portion
of the planning session in which they all participated. The

-223-
‘work to be done was defined, the specific functions were
agreeded upon, and assignments were made as to whom was to
assume the various responsibilities. The staff assumes re-
sponsibility, for they are working with the principal, not
for him.

In most school situations, the administrator has
no choice but to accept the responsibility of seeing that
the school operates in the best possible way and accomplishes
the purposes as they are defined. At the same time, however,
it is unlikely that the community will insist that purposes
be achieved in a particular or specified way. The choice
of methods of accomplishing its purposes, however, almost
always remains with the administrator.

Since the choice of methods of achieving effective
results usually rests with the individual administrator
in a local situation, the concept of responsibility the
principal should accept, becomes quite clear. It should
be that concept of sharing responsibility with the total
professional staff so they may contribute creatively to
the leadership process, and share in the successes attained.

It has been demonstrated in some schools that when
the staff have a part in the formulation of policy, they
become willing to assume responsibility for the operation
of that policy. They assume responsibility when they have
exercised their intelligence to establish the goals and
procedures, for in participation their judgment is at stake.

-224-
On the other hand, when the administrator alone makes a
judgment, only the administrator has a responsibility for
it, and the teachers feel little obligation to ensure that
his judgment is proven worthwhile. When the staff shares
responsibility with the principal for the directing process,
this includes the responsibility for contributing ideas,
helping the group reach agreements, planning activities,
and accepting and completing assignments that grow out of
group participation. If decisions concerning responsibilities
are made as a result of determining the work to be done,
the allocation of responsibility becomes a part of the so-
lution of the problem.

To summarize the concept of responsibility as it
relates to directing the activities of the junior high
school, it must be recognized that responsibility in a
democratic organization has little to do with the heirarchy
of positions. In a democratically administered school,
responsibility is placed in the job to be done or tasks
to be performed. The individual is more secure in imple-
menting goals, policies and programs that he understands,
because he has participated in their formulation. The
interaction of the group gives unity and loyalty to what
'the group develops and to the members of the group who share

in that process.

 

-225-
Communication

It was stated earlier that one of the factors nec-
essary for an organization to come into being was the “abil-
ity of persons to communicate with each other." Reference
was also made that one of the purposes of administration
was to maintain the organization in operation by the ability
to secure the coordination, cooperation, and motivation of
individuals to think and to act. The process by which these
elements become dynamic is that of communication.

Communication is the process of sharing informa-
tion, knowledge, ideas or attitudes. It is derived from
the Latin word (communis) meaning common. Communication,
than, in an administrative organization-~means that there
is an effort being made to establish a commonness, with
some one or with a group. Communication is central in or-
ganization because the structure, and scope is determined
by a system of communication.

The administration of an organization is basically
a problem in communication. The guidance, supervision and
direction, teaching, giving information, overseeing work
and work methods, and such other actions as will improve
performance of associates are a part of the administrative
process. All of these activities and success in their
accomplishment are limited by the process and techniques

of’communication.

-226-

Barnard27 has enumerated the controlling factors
in the communication system essential to organization
authority as:

a. The channels of communication should be definitely
known 0

b. Objective authority requires a definite channel
of communication.

c. The line of communication must be as direct or
short as possible.

d. The complete line of communication should be used.

a. Competence of persons serving as communication
centers, that is, officers, supervisory heads,
must be adequate.

f. The line of communication should not be inter-
rupted during the time when the organization is
to function.

g. Every communication should be authenticated.

The maintenance of the organization in operation

depends upon the effectiveness of communication. Communi-
cation might take place orally, by mechanical means, by
personal contact, or by writing. Each of these devices
serves as a communication medium with both advantages and
disadvantages. It is often wiser to write out policies,
decisions, procedures, and instructions than to use any
other form of communication. Since such communiques must

frequently be referred to by the persons using them, having

 

_vv

2
7Barnard, op. cit., pp. 175-180.

-227-
them in writing helps to retain their original and common
‘ understanding. "

The most effective and most desired means of com-
munication among personnel in the school are the face to
face, oral means of interaction. These may be accomplished
by person to person meetings, group conferences, informal
meetings of persons or groups or by other means. Even in
the personal-oral communication, misunderstandings often
occur. In spite of this, the personal-oral comlminication
method is far more effective in alleviating most problems
of conmiunication. Moreover, it is often not only the
words spoken but the expression of one's eye which reflects
the successful degree of communication. In all organiza-
tion, comunication must be a two-way process, from the
lowest to the highest ranked individual in the organization.
Too often administrators who utilize the more autocratic
approach in comunication (down the line of command) make

little, if any, provision for the reverse process.

Cont ml

There is general agreement among management author-
ities on the definition of the function of control in the
administrative process. Dimmock defines control as: ”. . .
an analysis of present performance, in the light of fixed
goals and standards, in order to determine the extent to

-228-

which accomplishment measures up to executive orders and
expectations.”23 Control then, is the function of every
administrator in the school system.in order that what is
done will be that which was intended to be done. As Fayol
stated it:

In an undertaking, control consists in verifying

whether everything occurs in conformity with the

plan adopted, the instructions issued and principles

established. It has for object to point out was -

nesses and errors in order to rectify them.and pre-

vent recurrences. It operates on everything; things,

people, actions.29
Thus, control recognizes the existence of purposes and plans.
It is implicit that an administrator who has not planned
cannot control. It is impossible to decide if one's
associates are operating in the manner desired to accom-
plish the action expected without having preconceived what
should be done.

Since control involves the achieving of purposes

‘through the perfbrmance of required activities, it follows
that control affects the behavior of people in an organi-
zation. A system of controls is concerned with the place
in the organization where failures are occurring, who is
responsible for them, and the methods of correcting such

failures. Preceeding this, however, the administrator

 

28Dimmock, o cit., p. 38.

29Henri Fayol, GeEeral gnd Industflal %agg§_iat
(New'York: Pitman Publ ng rporat on, , p. .

-229-

must be certain that: (a) Plans are complete, clear and
integrated; and (b) that those responsible fer fulfilling
plans know their authority and obligations. It is certain
that if an individual does not know his authority, or his
duties have been inadequately defined, any plan is almost
certain to fail. Dimmock concludes that control is adequate
when:

. . . there is an appreciation of order, an attention

to duty a sense of organization, discipline and morale.

. . . scipline is as important to group activity

as enlightened treatment, because these two are the

components of an important entity.30

Control can be best accomplished by adequate

planning, but it also requires coordination and definite

authority relationships within a policy framework.

Coogdination

The coordination of human effort is the essence of
all group activity, whether the purpose is social, education
or business. Coordination is the process of achieving or-
ganizational purposes by the synchronized, cooperative and
harmonious activity of individuals in the organization. A
prime requisite of coordination is the acceptance by all
persons in the organization of the objectives as they have
been identified. It is also necessary to avoid conflicts

 

30
DinoCk, OE: Cite, p. 2180

-230-

in purpose and practice as well as to relate programs and
policies to both timing and direction. Coordination of
effort is difficult to achieve and cannot be accomplished
either by leaving it to chance or by ordering it to occur.
As Dimmock stated it:

The executive must constantly work at it if he is not

to be embarrassed by unforeseen developments. He must

combat any feeling of complacency, any assumption that

the pro am is going forward smoothly and nothing un-

expecte can happen, beyond a temporary crisis.3

Coordination in the junior high school is the re-
sponsibility of the building principal and he is solely
responsible for its achievement. The administrative struc-
ture therefore should be so designed that this objective
can be accomplished. The structure must clearly define the
authority and functions to be performed by each individual
and which framework will facilitate the interaction essential
to coordination. All activities to fulfill the purposes
of the school should be so grouped and assigned to facilitate
their coordination by the principal.
The achievement of coordination requires the inter-

personal relationship of people. The exchange of ideas,
philosophies, prejudices, and purposes and the understandings

made, are accomplished best by direct personal communication.

This personal interaction affords not only an opportunity

 

31Dimmock, o . cit., p. 186.

. -231-

for the individual to achieve his own personal goals, but
the organization goals as well. The need for continuous
interchange of information and ideas cannot be overemphasized.
The school is not a static organization. Forces affecting
it are always emerging. The forces are constantly being
modified by the external environment as well as the internal
strains, actions and decisions. The school's problems are
never solved, even though a problem is eliminated because
the forces which created it are resolved. The process of
time undoubtedly will see other forces build up other prob-
lems.

Coordination is dependent upon the free flow of
information to all members of the school organization.
One of the principle causes for failure to fully achieve
purposes is neglect on the part of the administrator to
adequately inform his associates of what is being done and
their part in accomplishing it. An uninformed administrator
or staff member is most surely to be an ineffective one,
no matter how much he desires to be a member of the team.
The successful administrator who achieves coordination is
that person who has adequately informed his staff and they
know what they are responsible for doing.

Unity of Comd
The principle of unity of command in organization

is rather universally accepted. This principle states that

-232...

the organizational structure should be developed in such a
way as to permit one administrator to exercize singular
authority over all its functions. It also states that all
employees in the school organization are accountable to
this single administrator and that no other line or staff
employee in the organization are responsible to the govern-
ing body.

The principle of unity of command is concerned with
the authority and authority relationships in the organiza-
tion. Authority was earlier defined as the acceptance by
the individual of permitting his behavior to be guided
by a decision reached by others in the organization. In
all organizations there is a gradation of authority in a
series of steps on an uninterrupted scale, identified as
the scalar principle. The operation of this principle
requires that each person in the organization to be account-
able to only one person in the organization. This is the
meaning that Gulick attaches to this principle when he
says:

The significance of this principle in the rocess of
coordination and organization must not be ost sight
of. In building a structure of coordination, it is
often tempting to set u more than one boss for a

man who is doing work w ich has more than one relation-
ship. Even as great a philosopher of management as
Taylor fell into this error in setting up so rate
feremen to deal with machinery, with materia , with
speed, etc., each with power of giving orders directly

to the individual workman. The rigid adherence to
the principle of unit of command may have its absurdities;

-233-
these are, however, unimportant in comparison with
the certainty of confusion, inefficiency and irre-
sponsibilitg'which arises from the violation of the
principle.3
The statement of Gulick, indicates the difficulties
to be faced if the principle is not followed. Moreover,
coordination of activities would be patently impossible by
the administrator if this principle is not observed. With-
out such a principle there would most certainly be the prob-
lem of exacting responsibility, accurately and carefully.
The junior high school principal serves as an autono-
mous administrator in his building with the authority that
is assigned to him.by the board of education through the
superintendent of schools. In the individual building,
all personnel are accountable to the building principal.
The building principal assigns the activities, the areas
and degree of authority, the relationship of positions, to
his associates to accomplish the purposes and coordination
of the institution. ‘Without this authority he would be
helpless in developing the harmoniously smooth working
team to accomplish the objectives of the school.
Since the administration of the junior high school
can only be accomplished by the principal working with and

through his staff and these working relationships are usually

32Luther Gulick and L. Urwick, 2§¥g§§ in the gciegce
of A lot at on (New York: Institute 0 c s-
trat on, , p. 9. A

-234-
personal in nature, it would greatly handicap the effective-
ness of the principal if the superintendent of schools or
other district office personnel interfered in the process
of the direction and contrbl of the junior high school
staff. The building principal should know best the nature
of his associates, the type of motivation to which he re-
sponds, their professional strengths and weaknesses, as
well as the quality of their technical abilities. Conse-
quently the building administrator is in the best position
to select the most effective techniques which result in the
maximum productivity of individuals as well as the total
group. The personal nature of control and direction implies
that the building principal recognizes the individuality
of people, and must deal with them on an individual basis.

Perhaps the tool best adapted for makingorganiza-
tional principles work is the organization chart. The
chart indicates how positions and activities are tied to-
gether along their principle lines of authority. As Dale
points out:

Organization charts are merely recordings of decisions
already reached. The chart is therefore primarily a
technique of presentation. . . . It provides a birds-
eye view of the general structure of the work relation-
ships in the company much as a topical map shows the
azigisiaiznamnzes: $.22: €§f§§¥ifi°aahah

ship. It indicates what relationships are supposed to
exist . . . not the actual relationships.33

 

33
D318, 02: Cite, Po M70

rill;
.

-235-
Despite the shortcomings of the organizational

chart in not showing the informal relationships, and the

degree of authority at any one point in the organization,

it serves a useful function as a guide to administration,

to persons new to the organization, and as a road map for

decision-making. Clarity and definite authority relation-

ships are indispensible to a well-organized, well-coordinated,

junior high school.

Policy Developgept
Policies and policy development is an essential

ingredient to administrative control. Policies have been
defined as general statements or understandings which guide
or channel the thinking and action of individuals in an or-
ganization. '
Policies are the maps that.show the way the objectives
of the organization are to be realized. They must be con-
sistent and must be integrated in such a way as to contribute
to the realization of objectives. Policy statements are
seldom specific. The staff personnel usually have the task
of interpreting policy through the exercise of initiative,
discretion and judgment. The latitude of freedom will
depend upon the policy and the individual's role in the or-
ganization. The principal would have more freedom of dis-
cretion in which to interpret and apply policy than would
the assistant principal.

-236-

Policies should be written to secure the control as
well as the unifOrmity and consistency of thinking of
action of individuals. Some administrators are reluctant
to have written policies, because they are fearful of
adopting a guide which will result in inflexibility of action.
There are, however, definite advantages to written policies,
despite the problems of effective communication. They pro-
vide the best means of achieving uniform adherence, for
the written word tends to enhance clarity and definiteness
and is useful also fer its reference value.

Schools generally develop and adopt policies in
two broad areas. One group has to do with policies related
to the administrative functions; such as staffing, control
and direction. The other broad classification of policies
has to do with those activities whereby the school is
assisted in achieving its objectives. These, in the main,
are policies dealing with the activities related to the

instructional program.

Evaluation

It was stated earlier that an organization comes
into being in part when there is a need to accomplish a
common purpose. Evaluation, defined in its simplest terms,
is "to determine the value of." It is a process to determine
the degree to which the purposes or objectives of an in-

stitution have been realized. Any formal system of

-237-
cooperation requires an objective, a purpose, or an aim.
It is the interaction of individuals in the social system
that accomplish its purposes. In effect, evaluation is
the determination of the value of planning and the effective-
ness in utilizing the administrative process.

Evaluation and planning are really complementary
processes. The purposes of schools are planned to achieve
known objectives. Effective planning in the schools should
be based on evaluating the needs of the pupils in their
society, and the professional staff's evaluation of those
needs. Thus, planning is done on the basis of previous
evaluation and evaluation is done on the basis of planning.
Evaluation without planning or planning without evaluation
is incomplete and unwise. Evaluation is frequently the pro-
cess most neglected in schools. As complementary precesses,
planning and evaluation rarely occur as discrete steps.
These processes should occur simultaneously, for there is
a need to evaluate as planning is undertaken.

The ultimate criterion for testing the degree to
which objectives are achieved is improvement in the experi-
ences of pupils. Evaluating objectives will not ensure
that the experiences of pupils have changed so that educa-
tional outcomes are better than before. One of the diffi-
culties of measuring change in pupils, as affected by the
school, is the difficulty of distinguishing between changes

in learners which.can be attributed to school experiences

-238-
and those which result from other influences. This is
particularly true of appraising changes in attitudes,
habits, appreciations and general behavior. Further, these
changes are more difficult to measure than changes in skills.

Evaluation of the objectives of school experiences

should be carefully planned and well organized. The follow-
ing steps'are suggestive of the procedures which might be
used in the evaluation of school objectives:

1. Through the cooperative process of administrative
staff planning the specific areas to be evaluated
should be identified and clarified.

2. The goals which may be achieved should then be
determined. These goals should be identified in
terms of skills as well as in terms of behaviors,
attitudes, habits and appreciations. Each ob-
jective should be defined and clarified so that
all understand its meaning.

3. Specific techniques and procedures should be
developed and identified which will provide evi-
dence on the status and growth of each pupil
toward the gpals agreed upon. This should in-
clude a plan for how and when the evaluation
techniques or procedures will be used.

A. The next step should be that of applying or using

the technique or procedures.

-239-

5. The final procedure involves a study and analysis
of the data to ascertain the extent to which all
pupils have achieved the objectives.

Criteria, stated or implied, are essential in any
process of evaluation or appraisal. It is desirable for
the administrator in the junior high school, in evaluating
objectives, to identify basic criteria to be used. As the
criteria are used, three ideas should constantly be kept
in the foreground. First, the basic goal of education is
behavioral changes in individuals. Unless the pupils gain
more understanding, develop more wholesome attitudes, use
skills more effectively, are better able to perform as
self-directive, intelligent citizens, the school is not meet-
ing its objectives. The educational process is concerned
with change-~not status of pupils. This suggests that
evaluation devices must establish a bench mark from which
to measure the degree of changes. Secondly, the heart of
affecting change is the effectivenss of the teacher in the
classroom. Improvement in teacher effectiveness should
result in greater growth on the part of the pupils. This
suggests that the role of the building principal is to im-
prove the ability of the classroom teacher. This is done
in affecting gains in their knowledge, attitudes, and skills
as classroom.teachers. Thirdly, the administrative staff,
not unlike effective teachers, must continue to grow in

ability to serve as instructional leaders. School administrators

-240-
must grow not only in the area of technical knowledge but
also in the science of effective group processes if the
school is to attain its objectives.

Evaluation in the schools, then, is concerned with
the degree to which its purposes are fulfilled. Evaluating
and planning are closely related and are continuous pro-
cesses. The effective school program seeks to change
pupils in terms of their own capacities, not in skills alone
nor in terms of a pass-fail criterion, but also in attitudes,

beliefs, and behavior.

Guidelines for Administrative Or anization
and Staffing

The following guidelines summarize the essential
principles that should be considered when organizing and
staffing a junior high school. They appear to represent
modern concepts that are adaptable to a school organizaé
tion, consistent with the values of the open society in
which we live and wish to establish effective schools. A
considerable amount of flexibility would seem to be needed
to improve the quality of the instructional program of the
school.

1. An administrative structure is designed for the

purpose of coordinating and facilitating the
accomplishment of objectives.

2.

3.

h.

5.

6.

7.

-241-

The principle basic functions which are needed
in the administrative process in order to ful-
fill the objectives of the organization, are:
planning, organizing, staffing, directing, con-
trolling, and evaluation.’

Coordination of organization activities is
achieved through the interpersonal relationship
of the staff.

A clear and complete statement of the organi-
zation objectives is essential, and it should
be made known to all members of an institution
affected by it so that admdnistrative activities
can be directed in a unified, orderly, gainful
and effective manner.

Planning should take place before doing since
most individuals and group efforts are made more
effective by determining, before any operative
action takes place, what shall be done, where,
how, and by whom.it should be done.

The smooth blending together of all parts is
secured by means of coordination, thus making
up an entirety in order to obtain maximum con-
tributions, both in respect to each part and in
relationship to the entirety.

Clearly defined organizational policies are
essential to the successful operation of adminis-

tration o

 

8.

9.

10.

ll.

12.

13.

1h.

 

-2u2-

Effective and sustained administration activities
require decision-making--there is no adequate
substitute for it.

A significant characteristic of most administra-
tors is the ability to create or stimulate others
to think, act, or to create ideas, and to evaluate
and apply these ideas successfully.

Organizing is a dynamic activity. It should take
into account changes in the institution, whether
these changes be in goals, scope, content or per-
sonnel.

Functions are the main entities around which an
administrator builds effective organizational
structure.

The objectives of an institution are of major
importance in determining the organizational
structure.

Only functions which are absolutely necessary

to the organization's objectives should be
utilized in the work of the organization. These
functions should be accompanied by clear state- .
ments of authority and responsibility of persons
charged with their performance.

Authority should be commensurate with responsi-
bility, that is, the individual's right to exact
action by others should be accompanied in a

15.

 

-243- '
proportional obligation to carry out his assigned
activities.
For any given institution, the various organi-
zational units should be connected by clearly
defined authority channels so that the activities
of each unit can be properly supervised by a
single unit of the immediate higher organiza-

' tional unit.

16.

17.

18.

19.

20.

For any given period, an individual will accom-
plish most when responsibility fer the comple-
tion of a definite task is fixed upon that in-
dividual.

maximum organizational effectiveness requires
effective personnel placement. Each individual
should be carefully selected and placed so that
the requirements of the job and the make-up

of the individual represent the best possible
combination.

Within most organizational structure, informal
groups exist and affect operations within the
entire entity.

An organization chart and policy statements help
an administrator to visualize and clarify the
organizational structure in its entirety.

An organization needs administrators. They are
the ones who effect the essential activity of

management.

21.

22.

23.

2h.

25.

26.

-244-

Controlling is an essential administrative
activity because it helps assure that the goal
of planning and organizing efforts are and will
be achieved.

Complete instructions are an aid in obtaining
uniform execution of common tasks, and in re-'
ducing the amount of controlling. .

An administrator's success depends in a great
measure upon the intelligent handling of human
relations.

Every employee should be given-the work re-
quiring the highest skill and ability compatible
with the employee's talents, education and ex-
perience.

All members of the organization wish to be kept
informed. It is the responsibility of the ad-
ministrator to receive and to answer questions
in an understanding manner, and to let the group
know what he is trying to accomplish as well

as how, where, and why.

The purpose of organization is to clarify and
distribute responsibility and authority among
individuals and groups in an orderly manner,

consistent with the purposes of the enterprise.

 

27.

28.

29.

30.
31.

~245-
The role of the administrative staff should be
one of leadership, stimulation, coordination,
service, and appraisal, instead of merely
inspection and command.
The admdnistrative functions should be organized
to provide the machinery for democratic action.
The administrative staff should be organized
to provide persons on the staff with as much
freedom for individual initiative as is con-
sistent with efficient operation and prudent
controls.
The organization should be under unit control.
The administrative organization, by its very
structure, should provide for the continuous
and cooperative evaluation and redirection of
the organization from the standpoing of ads-
quacy (the degree to which goals are reached),
and efficiency (the degree to which goals are

reached relative to the available resources).

CHAPTER VII

ADMINISTRATIVE AND STAFF POSITIONS NEEDED IN THE
JUNIOR HIGH SCHOOL

It was stated previously that it was impossible
for the building principal to adequately perform all of the
administrative functions alone at the junior high school.
The responsibility of administering the educational program
for 700 to 900 pupils, along with the professional and non-
professional staff, requires the services of several non-
teaching staff. The seminar groups identified forty-three
accepted functions which they said were necessary to fulfill
the purposes of the junior high school. Each of these
functions can be performed in a variety of ways, with vary-
ing degrees of emphasis or attention to each function. Fur-
ther, they can be assigned in a number of different ways to
a number of people with different titles and positions. The
previous chapter indicated that it was possible to adminis-
tratively structure and assign titles in several ways in
the junior high school, based on the functions that needed
to be performed.

Some of the factors that influence the number and
kinds of positions and titles of positions include: the
enrollment of the school, the willingness of the community

-2z.e.

 

-247-
to provide for education, the personality of the school
principal, the training and experience of the teaching staff.
Other factors include the kinds and‘variety of services
available to teachers and pupils; the need for pupil personnel
services such as guidance counselors, psychologists, and
nurseszas well as other health services desired. The organi-
zation of the central or district administrative and super-
visory staff has also a major effect on the administrative
organization and staffing of a particular building unit.

For example, if there is a district coordinator of secondary
education who works with the building principal and staff

on instructional improvement, an assistant principal of in-
struction might not be a necessary position in the junior
high school. Further, the decision made relative to organiz-
ing the staff with department chairmen will be influenced by
whether or not the central administrative office has super-
visors of subject matter areas who work directly with class
room teachers in planning and organizing the instructional
program of the school.

A review of the completed questionnaires by building
principals who performed the forty-three administrative
functions in their buildings clearly indicated that there
was no distinct pattern of administration in these schools.
In fact, the patterns were so divergent that it could be
concluded there was no emerging general pattern discernible.

The seminar discussion groups indicated a general

.. 21,3-
dissatisfaction with the adequacy of staff to perform the
administrative functions. Their areas of dissatisfaction
of staff adequacy were basically in the areas of adminis-
tration, guidance, and clerical assistance. This staffing
inadequacy was confirmed in the questionnaire, by the fact
that in no single instance was one function reported among
the forty-three where at least two or more building prin-
cipals were not performing the function alone.

Review of the Literature

Authorities in school administration have generally
avoided suggesting the amount and kind of a professional
staff that a particular school building should have. There
is a logical explanation for their not being specific about
administrative and supervisory positions needed for all
schools. Positions should be related to the administrative
and supervisory activities that a school needs to perform
to fulfill its objectives. The purposes of a specific
school are derived from the needs of’the pupils, the community,
and the society in which the institution is located. While
the general needs of all pupils are quite similar, it is
entirely possible that the specific needs of pupils in some
schools within a community would be different. It would,
therefore, be necessary to provide some services and perform
some activities that might differ from school to school
within a community. In this case, it would be illogical for

-249-

educational authorities to recommend a staffing pattern for
all the schools, without knowing the needs and aspirations
of the pupils and the community. It is possible, of course,
to suggest general needs of all pupils in the junior high
school from general knowledge about adolescent pupils and
to suggest a basic framework to administer to these general
needs. If the administrative staff, however, is to accom-
plish specific objectives for a particular school, the
staffing patterns should be designed to accomplish activities
identified for particular pupils in a specific school.

Most of the studies reporting on staffing are,
generally, reports of what staff a school building has,
rather than what staff it ought to have to perfbrm the
administrative functions; or reports of studies of how
principals spend their time during the school day.

Perhaps one of the earliest administrative staffing
studies on the junior high school was one made in 1916, in
the Cleveland, Ohio, schools by Judd. In this study it
was shown that the junior high schools:

‘. . . had two principals, one a man and the other a
woman. In a general way, the functions of these offices
are described by saying that the man is to have charge
of the boys and the woman the girls. It appears that
neither one has responsibility over the course of study.
The man makes the program.and has supervision over cer-
tain types of work. Other subjects and teachers are
assigned to the woman. This organization appears to

be clumsy and expensive and to fail at the point where

greatest supervision of activities is needed, namely,
in arranging the detail of the course of study.1

A...—

lAubrey A. Douglas, "The Junior High School," Fifteenth
Yearbook of the National Society for the Study of Education,
Part III (Bloomington, 111.: Public School Publishing Co.,
1916), PP. 157-15 0

-2 50..

At that time the administrative staff of the school
was quite small and apparently the improvement of instruction
was not considered by principals to be their primary respon-
sibility. The junior high school has progressed considerably
since Judd's study, and the administrative functions which
principals perform have increased. How principals spent
their time two decades later, was the subject of the Master's
thesis for chelly. He asked 67 junior high school principals
in California to indicate the activities they engaged in
during the school day and the per cent of time they spent on
these activities. His study showed the following activities
and time spent:2 .

Per cent of
Activity , school time

Inspection of building 5.54
Supervision of instruction 13.6
Routine office work 18.0
Interviewing pupils 9.0
Interviewing callers 7.0
Discipline problems 8.0
Conferences with staff lh.0
Outside school activities 9.0
Matters that should be delegated 5.5

Total 99.6

The author concluded the study by stating:

The outstanding weakness of the junior high school
principal seems to be his lack of training in super-
vision, and because of this lack of training he turns
his attention to other matters of vastly less importance

 

2John G. McNelly, "The Activities of Junior High
School Principals in California

” Cglifornia eggrterl§ of
Segogdgrz Education, Volume IV (January, , pp. - 65.

-251-
and devotes his time to petty details of a clerical
and administrative nature . . . Only ten per cent
of the principals reported as much as 35% of their
time spent on activities which directly improve in-
struction and aid the professional growth of teachers.3

Whether or not the previous study was influential
or impressive on others is not known. However, a short
time later Foster was rather caustic in his appraisal of
junior high school principals when he said:

.No one will deny that, with few exceptions, the junior
high school has been administered by amateurs. we need
a man with superlative attributes of a leader who will
give competent professional direction . . . Adminis-
tration s a necessary, but often exaggerated function.

A more recent report of how principals believe they
allocate their time was made by F'aunce.5 He compared studies
made in 192l, 1932, and 1960 on principals activities. From
this study several conclusions are made:

1. Regardless of the school enrollment, principals
spend their time in about the same way. The exception
might be, that principals in larger schools spend less time
on student activities because they have the services of
guidance counselors.

2. Regardless of the size of school, the principals

spent approximately 30 per cent of their time on office

 

31big., p. 164.

“F. K. Foster, "Junior High School Principalship,"
American School Board Journal, LXXXV (August, 1932), pp. 21-22.

 

5Roland C. Faunce,and Mbrrel J. Clute, Teaching and
L a n he un or Hi S hool (San Francisco, a .,
a swort. is ng 0., nc., 61), pp. 3h1-343.

-252-
routines and approixmately 15 per cent of their time in
supervision of instruction.

,3. From 1921 to 1960 the per cent of time spent by
the principal in supervision of instruction remains sub-
stggtiallz thg same.

From this study by Faunce and others it is quite
clear, for what ever reasons there may be, instructional
improvement is indeed neglected by the building principals
in schools.

Perhaps principals have been negligent in devoting
the major portion of their time on instructional improvement
through no faults of their own. A recent study was made in
Pennsylvania involving principals, teachers, and superintendents
of schools, in seeking to determine how to improve education
in that state. In this study Horton found:

0f the ten problems mentioned mostrfrequently by the
principals, teachers and superintendents . . . trying
to distribute time among his duties . . . the effec-
tiveness of the principal as an administrator may be
questioned because of his excessive duties and respon-
sibilities. These duties are so demanding that little

time is 12ft to help teachers with their individual
problems.

 

6Ben H. Horton, Jr., "A Study of the Problems of
Beginning Principals as a Basis for Improvement of the Pro-
gram for Education of Principals at Applachian State Teachers
College," (Unpublished Ed. D. dissertation, School of
Education, Florida State University, 1958).

-253-
The conclusions reached in the above study confirm
Edmondson's opinion reached a decade earlier when he said:

In a school of 600-700 students, the principal and his
assistant principal are not equal to the task of per-

forming all the activities that are necessary and ad-

visable for the most effective administration. It is

almost impossible to find a school over supplied with

administrative assistants.7

The literature of education is replete with statements
acknowledging the inadequacy of administrative staff posi—
tions in schools. Why so few schools have an adequate staff
for the titanic tasks they face was the subject of an edi-
torial by Shaw, and he said:

In our view several generalizations worth mentioning are:
At some point, some one not immersed in the daily tasks
is needed to give an outsiders vieWpoint. Each situa-
tion is unique, and the number and different kinds of
administrative staff needs respond to that difference.
The fundamental base is an exhaustive testing of the
necessary and useful tasks to be done. Job descriptions,
in detail, should be determined from that testing of
tasks. A eement by faculty and the Board, on tasks

to be per ormed is a necessa prerequisite to estab-
lishing adequate skills. Bui ding an adequate staff

for administration . . . is directly related to goals
and is essentially consistent with the processes of the
institution it is serving.8

This above quotation is in general agreement with
the position of most authorities in public and educational

 

7J. B. Edmondson, Joseph Roemer, and Frances L.
Bacon T Administration of the ode Se ondar School
(New orfi: The HEcmiIIan Co., 19%), pp. 96-97.

8Archibald B. Shaw, "The Adequate Administrative
Staff," Overview, Volume II_(February 1961), p. 15.

-254-

administration, that it must first be determined what it is
that needs to be done before a specific staff can be judged
either adequate or inadequate to accomplish given objectives.
The literature contains four references, that will
be useful to cite, that suggest the kind and amount of per-
sonnel needed to perform the administrative functions at
the junior high school. Gruhn and.Douglas have suggested
that, for a school enrolling from 600 to 1000 pupils, the
following staffing patterns should be attainable in a well
supported junior high school:9v

Title of Position Number of Positions

Principal 1

Assistant principal 1/2 to l
Counselors‘ 1 to 2
Library 1 to 2

School nurse 1 to 1 1/2
School physician 1 4

School psychologist 1/2
Supervision and curriculum direction 2

In addition at least two clerical and secretarial positions
were recommended.

The range of total individuals to perform these
functions and services is from seven and one-quarter to ten
and one-quarter full time persons. It should be pointed out
that this recommendation did not specify or recommend remedial

teaching services or dental hygientist services considered

 

9WilliamT. Gruhn and Harl R. Douglasi The Modern

Junior Higg School (New York: Ronald Press, 955), p. 360.

-255-
by many school administrators to be important services to
provide for pupils.

The Commission of Secondary Schools of the Southern
Association of Colleges and SecondarySchools in 1958 recom-
mended that a junior high school for 720 pupils should have
the following minimum personnel:

A full time principal

A curriculum or administrative assistant

A full time materials consultant

A full time guidance counselor

A full time school nurse

A full time lunch room manager . . .10
In addition, the recommendation was.made for at least three
full time clerical or secretarial positions to assist the
above named positions. Thus, the Commission of Secondary
Schools has recommended a minimum of six full time persons,
somewhat lower in number than the minimum number recommended
by Cruhn, without making a statement on what they considered
to be an optimum staffing pattern.

A third recommendation for the general staffing needs
of the junior high school was made by Braham. After review-
ing the responsibilities of the administrative staff he
stated:

To develop these areas, a school needs to have ade-
quate personne1--an assistant principal, a guidance

 

10
Commission on Secondary Schools, The Junior High
School Proggam, The Southern Association of o e es an

Secondary Sc ools (Atlanta, The Association, 1958 , p. 76.

-256-
-counselor, a curriculum director, an office clerk for
1383 gagipgpils: alpsychologist and a nurse fer each

Using the above criterion for staffing a school of
1000 pupils for example, would have with the building prin-
cipal, five administrative positions, exclusive of those
of the counselors, nurses, and others. This staffing pattern
would develop a pupil-administrator ratio of 200 : one.
This is the ratio that the seminar groups and several edu-
cational authorities believe is necessary to a well admin-
istered junior high school.

Still another study on personnel needs was made by
the Illinois Junior High School Principal's Association in
1959, under the direction of Baughman. In a survey of the
principals of 129 junior high schools in Illinois, they
concluded: ". . . that the [Illinois] schools needed more
help in supervision and curriculum development,” and "that
a school over 500 pupils should have, both a full time
principal and assistant principal."12 This study did not
review nor suggest what the total staff to perform adminis-

trative functions should be.

 

11R. V. Braham, "What Are the Current Trends in the '
Junior High School " Nat ona Association of Secondar School
Principals, XLIII (lip-W , pp. - .

l2M. Dale Baughman "Patterns of Staff Personnel in
Illinois Junior High Schools," National Association for
3 co da Sch ol Princi ls, XLV (FeBruary, I961), pp. #7-

S6.

-257-
These staffing recommendations, to some readers,

may seem to be quite ideal and beyond attainment by school
districts. This is not the case. In 1958, Melbo of the
School of Education of the University of Southern California,
and a team of his professional associates, were asked to
make an exhaustive study of the Whittier, Califbrnia, school
district and to make recommendations fer an administrative
organization designed for instructional improvement. The
study had as its primary objective to:

. . . develop a new pattern of organization for the

administrative staff to free the principal from some

responsibilities, so that he could provide leadership

for the development of the instructional program. It

was recognized that if the principal is to devote marly half

of his time to the instructional program, many of the

responsibilities currently assigned to the principal -

would need to be delegated to an administrative officer

serving in.the capacity of assistant principals.13

The report of the study continues by stating that

the school needed three full time assistant principals, one
each assigned to the areas of guidance: curriculum and in-
struction; and business and pupil activities. In addition,
a second echelon of staff was recommended consisting of four
coordinators and under them assistant coordinators. Three
coordinators were assigned to the instructional area and one

to student personnel. Assistant coordinators were assigned

13Charles E. Wallace, "An Administrative Organization
for Instructional Improvement," National As ociation for
Secongagy School Principgls, XLV (lhEFEZFy, I96I), pp. 32-35.

-253-
to student personnel services and business affairs. In
addition, a recommendation was made for a full time head
guidance counselor. '

To summarize the staffing recommendations made, the
equivalent of ten full time positions were needed to ad-
minister the activities for 1800 pupils. This is a ratio
of one administrator for 180 pupils, considerably lower than
the previous studies cited. It should be pointed out also,
that the staff recommended for the school excluded services
such as counselors, librarians, nurses, and other necessary
positions needed for a well organized junior high school
along with the kinds of services most parents want fer their
children and the services needed by alert teachers for a
quality educational program.

The point to be made here is that the great majority
of school systems have not analyzed the objectives they are
desirous of accomplishing, the activities that the staff
need to engage in to accomplish these objectives, and the
staff needed to accomplish their objectives. Until schools
follow this procedure, it is unlikely that it can be deter-
mined what an adequate staff is, nor why instructional pro-

grams are not up to the expectations of many citizens.
Administrative Personnel

The North Central Association of Colleges and Secondary
Schools has stated:

-259-

For high schools enrolling 250 or more students . . .
a principal who devotes most of his time to the admin-
istration and supervision of the high school, and such
special supervisors as the effective operation of the
program.requires.1h

Individuals as well as organizations have made
recommendations as to particular kinds of positions and the
number of individuals that a junior high school should have
as a part of its administrative "team." The Association for
Supervision and Curriculum Development has stated:

In the future, we will look to better utilization of
administrative personnel in order to provide optimum
leadership for organization assistance. . . . It is

likely that one full time administrator will be assigned
for 200 students, as is now the case in some junior

high schools.15

This recommendation is not radically different from
that one cited earlier made by Gruhn and Douglas, for they
recommended from three and one-half to four full time ad-

ministrative personnel for 600 to 1000 pupils.
. On this subject in 1960, Dr. James Conant said:
To exercise leadership, the principal must have suffici-
ent administrative assistance in the form of assistant

principals and clerical help. . . . Generally speak-
ing, a full time assistant principal . . . should be

 

 

1l’Policies and Criterion for the Approval of Secondary
Schools, No h Central Association of Colle es and Seconda
Schools (CEIcago, TIL: The IssocIatIon, 1560), p. I2.
lsCommission of Secondary Curriculum, Th Junior
Hfigh Sghool We Need, Association for Supervision an urric-
‘u 11139 eve opment ashington, D. C.: The Association, 1961),
p. o

~260-

available for every 750 pupils; a clerk OI secretary
should be available for every 250 pupils. 6

This recommendation is more conservative than the
recommendations cited previously, and it was based on ob-
servations made in visits to schools, rather than upon an
analysis of the functions to be performed or a study of the
myrid activities usually a part of the junior high schools
program. As was stated earlier, most authorities have been
reluctant to make specific recommendations on administrative
staffing, without a thorough knowledge of the activities to
be performed. This tapic was adequately covered in an

earlier section.

Guidance Personnel

 

There is considerable difference of opinion as to
the number of specialists needed in the area of guidance
and testing, in the school, among various authorities. Dr.
Conant suggests that: "a full time specialist, or the
equivalent in guidance and testing should be available for
every 250-300 pupils in grades 7 and 8. The same ratio
applies to grades 9-12 as well."17

 

16James Bryant Conant, Education in the Junior High
Schoglp. Zears (Princeton, N. J.: Educat on esting er ce,

17
I__b_.___1de, Pa 270

-261-

The New York State Department of Education in a
recent bulletin to administrators, indicated that an optimum
staff in guidance would be: "One to 400 pupils."18

Still another recommendation was made by the Asso-
ciation for Supervision and Curriculum Development which
suggested: "Even in the most ideal situation, the counselor
works with 200 to 300 students. . . ."19 .

To many educators in theiMidéwest, the criterion of
the North Central Association of Colleges and Secondary
Schools is accepted as quite authoratative. This associ-
ation has made the following recommendation for guidance
personnel: “ w

The ratio of students to agalified guidance personnel
should be approximately 3 . l . . . schools enrolling
over 300 pupils should have a full time guidance worker
or the equivalent in partatime‘w053ers for every 300 ’
pupils or major fraction thereof.

Another authority in guidance, Dr. Clifford Erickson,
has expressed this opinion about the ratio of guidance per- ‘

sonnel to pupils:‘

 

18The University of the State or New York, Crite ia
t at ma be u ed to Dot rmine t e S ze of Efficient c-

on afig Sc 00 , e State E ucation partment any, . .:
9 partment, March, 1961), p. 3.
19Commission on the Education of Adolescents, Egg
Higfi School we Need, Association fer Supervision and Cur-
c um Deve opment (washington, D. C.: The Association, -
1959). p. 13.

20North Central Association of Colleges and Secondary

SChOOIB' OE: Cite. P. 170

-262-

The rule of thumb followed in many communites is, one
period per day for each 75 to 100 pupils. . . . It is
probably safer to assume that the most efficient ratio
is somewhere between 50 and 100 pupils for each coun-
selling period.21 , ‘

Recommendations for the ratio of pupils to guidance,
personnel show considerable variance. 'Most building prin-
cipals would like to have Conant's suggested ratio represent
the staffing pattern policy to be followed in their schools.

School Psychologists

The inclusion of the position of a school psychologist
on the staff of a particular school is of quite recent origin,
in the life of the junior high school at least. In 1955, a
report of a conference devoted in part to discussing the
role of the school psychologist stated:

There has been so little experience with adequate
services that no one can say with certainty how many
could be employed. Estimates of the proper ratio vary
from one psychologist to every 1000 students to one

fer every 300 pupils. . . . Whereas, a few favored
districts and individual schools with enrollments of
1000 or less are served by a full time psychologist,
there are many more where the ratio is one psychologist
to 5000 or more children.22

 

21Edward C. Roeber, Glen E. Smith, and Clifford E.
Erickson, 0 ;-2i -tion -gd Administr-t o« o' r _daoce S: --
ices (New or: ‘c aw ‘ I :.o. c., cc., ° , p. 0 .

22Norman C. Cutts, (ed.) A Report of the Thayer
Conference on the Function Qualifications and Training of
School Psychologists (Washington, D. C.: American Psycho-
logical Association, Inc., 1955), p. A.

-263-

Some time after the above mentioned conference, a
specific proposal was made, according to Johnson,23 by the
American Psychological Association in which they recommended
a ratio of one psychologist to every 3000 pupils.

This would indicate that the ideal size junior high
school would have this service on a partdtime basis at
least, and the more affluent communities might have the
service available to pupils on a full-time basis.

Igstructioggl Sggzices

Instructional services has basic reference to those
services dealing with instructional materials. The school
library should serve as the instructional materials center
for the school. Instructional materials include books and
other printed materials, films, recordings, and other media
developed to aid learning. A modern junior high school
uses motion pictures, sound recordings, film.strips, and
other materials to give increased dimensions to the library
role. The function of the materials center is to locate,
gather, provideand coordinate the use of school materials
for learning and the equipment required for use of these

materials.

 

23Walter F. Johnson, Buford Stefflre, and Roy A.
IEdelfelt i1 Pe so 9 an den e Se ces (New York:
McGraw Hil o 0., nc., , p. .

-254-

This vital and necessary service is recognized by
all education authorities as necessary to and the center of
a school's instructional program. Conant expressed his
opinion on the matter by stating: "I have become impressed
more than ever with the important place of the library in
the Operation of the schools I have seen. . . ."24

Libragian

Since the instructional materials center is an
auxiliary service, some boards of education are reluctant
to staff adequately this important facility. The New York
State Department of Education has recommended that a proper
staff should be: I'One librarian to every 500 pupils in the
secondary schools."25

The North Central Association of Colleges and Sec-

ondary Schools has stated as part of its evaluative criteria:

"Schools with enrollments of 500 or more pupils shall employ
a librarian who devotes full time to library service."26
Still another recommendation has been made by the

American Association of School Librarians, a division of

the American Library Association, the professional association

 

2l‘COl’lant' OE. Cite, p. 310
3 25The University of the State of’New York, 0 . cit.,-
p. 0

26North Central Association of Colleges and Secondary
Schools, op, cit., p. 18.

-265-
of librarians. Their latest recommendation, published in

1960, stated:

1. For the first 900 students or fraction thereof:
One librarian for each 300 students or major frac-
tion thereof: if the head librarian has no ad-
ministrative responsibility for audio-visual
materials. 0 e o

2. For each additional 400 students or major fraction
thereof: One librarian, if the head librarian has
no administrative responsibility for audio-visual
materials. . . .

b. Clerks
One clerk for each 600 students or major there-
of if the head librarian has no administrative
responsibility for audi-visual materials.27

This association further recommended that every school with
200 or more pupils should have a full-time librarian and a
one-half time clerk.

The staffing recommendation was not reached by any
of the schools in the staffing status study; most schools

‘up to an enrollment of 1300 pupils had one librarian re-
gardless of their enrollment.

Instructional Materials Consultant
This position has only recently been recognized by

some educational authorities as a needed position in the
schools. The American Library Association, for example,

did not acknowledge until 1956 that the school library should
be the instructional materials center for the school. For

a number of years, some librarians only recognized printed

materials as being "proper" for the school library to house.

 

2
7The American Association of School Librarians,

Standards f r School ib a Pro ams (Chicago, Ill.: Ameri-
can rary ssociat on, , p. 5 . '

-266-

The acceptance of the cross media approach to learning ma-
terials has finally been properly appreciated by some pro-
fessional educators.

Since the acceptance of this position, those inter-
ested in this area of instruction have not been ”profession-
ally organized," nor have other groups indicated a pupil-
administrator ratio desirable for a school. The increased
production, use, and discovery of excellent instructional
subject matter, using oral, audio, and visual approaches
gives increased dimensions to instructional materials centers.

The instructional materials consultant develops
more effective ways to use all types of materials by teachers
and pupils. It is his function to be directly responsible
for a program.of counsel, service, and inservice education

for teachers in the use of instructionalmaterials.

. Remedial Segzices

Of recent years many secondary school administrators
and teachers have recognized that pupils entering the seventh
grade do not have a uniform level of competence in the lan-
guage arts skills. Reading authorities, for example, generally
agree that nearly 50 per cent of the entering pupils, find
the standard textbooks in school courses not geared to the
pupil's ability. From.25 to 35 Per cent of the pupils find
the books beyond their level of comprehension, and 10 per
cent find the textbooks no challenge to their abilities. It

-267-

has also been feund that within a school population pupils
have serious speech defects, of varying kinds, that inhibit
their learning capabilities. To assist pupils to reach the
level of academic achievement comparable to their learning ‘
potential, school authorities have»recommended the addition
of reading consultants and speech correctionists to the

school staff.

Reading Consultant

The introduction of the position of reading con-
sultant at the secondary school level has gained momentum
during the past decade. At the present time no relationship
or ratio of individuals needed in this role to pupils has
been established by any professional group or organization.
It would seem safe to state that every junior high school
with 700 pupils would profit from such an addition to the
staff.

Only in recent years have the secondary schools been
concerned about the reading abilities of its pupils to the
point of providing specific instruction to pupils in this
area. Fer quite some time authorities have agreed that every
secondary teacher should be a teacher of reading, but they
point out that this goal is far from being achieved, largely
because subject-matter teachers lack training in reading
:methods. In most schools, when the need for adequate read-

ing instruction is felt, a reading program is organized with

-268-

a reading consultant to give leadership in the program,
rather than the English department. This seems logical,
for a child with a reading difficulty cannot be more success-
ful in reading mathematics or social science materials than
he can in English literature. I

Most secondary schools use the developmental read-
ing program in their improvement instruction in the reading
area. This requires considerable curriculum leadership and
cooperative effort on the part of all teachers to make it
successful. It is not unusual to find some schools requir-
ing all pupils to have a "double-period" of English at the
seventh grade level, and to include speaking, writing, read—
ing, listening as well as literature in their teaching
units.

The reading consultant serves three basic functions
in most schools. They serve as diagnosticians of reading
problems of pupils; they serve as teachers of individual as

'well as groups of children: and they also serve as a consul-

tant to all teachers in the area of the language arts.

Spgech Corregtignigt

Host authorities in speech agree that from three to
‘five per cent of all school children need special help with
‘their speech. 'With these children their speech is either
so different or so uneven that spoken communication is
seriously faulty or inefficient. Since the ability to use

 

 

-269-

speech as a means of communication is necessary for the
teaching-learning process, children handicapped in this
area need some kind of special assistance.

There are no fixed standard ratios of pupils to
speech teachers that have been adopted. Host authorities
agree that a school district with 3500 pupils probably has
a need for a full-time speech correctionist. To a large
extent the ratio of pupils to speech teachers depends in part
on the kinds of defects a child has and the child's level
of development. The Department of Public Instruction in
IMichigan requires, for state reimbursement of the speech
correction program, an adequate case load of pupils who have
been certified to need the program. The case load required
forthe 1961-62 school year as stated:

The minimum case load of 100 cases per speech teacher
as required by the Rules and Regulations of the De-
partment of Public Instruction, should be considered
the maximum number that any speech correction teacher
can serve.2 .

If the junior high school, for example, has 800
pupils, it is unlikely that the speech teacher would need
to spend more than twenty-five per cent of full-time in
that building. Principals and teachers feel quite strongly
‘that this service should be provided to pupils to facilitate

their learning.

 

28Michigan Department of Public Instruction, Educa-

tion Profigam for Children Who Need Speech Correction (EinsIng,
C O. 6 apartment, ' p. O

-270-

Health Sggzlcgs

Most school districts in New York State have health
services‘available to children. In practically all come
munities, outside of of New York City, these services are
provided by the school district. In some school districts,
too small to warrant the local district providing this
service, school districts join in Cooperative Boards to pro-
vide these services. The New York State Department of Edu-
cation recommends that school districts provide the service
of a school nurse-teacher and a dental hygienist teacher.
In New York State it is mandatory that health service per-
sonnel be qualified and certified as teachers.

School Nugge

A recent bulletin of the New York State Education
Department made this recommendation for the ratio of school

nurses to pupils: "One nurse for 500 pupils."29

Dental H eni t

A recent bulletin of the New York State Education
.Department made the recommendation for the ratio of dental
hygienist to pupils: ”One dental hygienist to 1500 pupils."30

L

29The University of the State of New York, op. cit.,

p. 30

3olhid., p. 3.

-271...

Total Professional Staff Needed

Three references from the literature will be used
to indicate the total number of professional staff that a
junior high school should have in relation to a given number
of pupils. Dr. Conant has stated: ”One can show that a
three year junior high school might have a ratio of 59 Pro-
fessionals for 1000 pupils. . . ."31

Gruhn and Douglas have suggested that the total
staff for 600 to 1000 pupils might range from "33 to 53 pro-
fessional persons.”2

The New York State Education Department has recom-
mended a minimum of instructional staff for a school from
750 to 1000 pupils, from "33 to 50 individuals."33 In
addition, "administrative, supervisory and special services
may require from four to six additional staff members per
1000 pupils." In this same bulletin, it stated that Dr.
Paul Hort, formerly of Teachers College, Columbia University,
". . . has raised his recommendation to 60 professional staff
per 1000 pupils.”

Recommendations for total professional staff needed

 

31Conant, op. git., p. 35.

32Gruhn and Douglas, op. cit., p. 360.

33The University of the State of New York, Finance
nd School Staffin , The State Education Department (IIBany,
N. I.: The Department, 1961), p. 7.

-272-
at the junior high school are, of course, dependent upon a
great number of community factors, as well as the needs of
the individual pupils and the school. There is no guarantee
that a ratio of 45 Professional staff per 1000 pupils will
be less able to perform the activities needed to keep the
school in operation and meet needs of children than a school
with a staff of 60 professional staff per 1000 pupils. The
criterion for staffing is dependent upon the needs of the
pupils and the community, the kinds of services that the
school is expected to provide, and the expected outcomes of

the objectives of the school.

Stgffing Epcommendations of the Seminar Groups

To cover the forty-three functions adequately,
without involving the principal in inappropriate activities,
the following positions or their equivalents seemed to repre-
sent the Optimum staffing pattern for a school from 700 to
900 pupils:

Full time principal

Two full-time assistant principals

Full-time school nurse-teacher

Part-time dental hygienist

Three full-time guidance counselors

Part-time or full-time school psychologist

Part-time or full-time coordinator of student activities

 

-273-

Partitime or full-time coordinator of instructional
materials

Full-time librarian

Full-time reading consultant

Part-time speech correctionist

Several of these positions are not strictly admin-
istrative. They do, however, have attached to them functions
which have to be carried out by school administrators, where
these positions are not provided. The school nurse, for ex-
ample, is often assigned the responsibility for the pro-
cessing of claims for the student insurance program. In
the absence of this full time position of the school nurse,
this responsibility must be handled by someone else on the
administrative staff. '

The positions listed above were selected to represent
an optimum staffing program. There is nothing sacred in
the positions selected or in the order in which they appear,
but the services represented by the positions probably re-
quire persons who devote to them a block of time.

Assuming for purposes of illustration a pupil en-
erollment of 850, the staff recommended would provide a pupil-
‘administrator ratio of approximately 210 : one. (This is
‘based on the full time equivalent of four positions: prin-
«cipal, assistant principals, coordinator of student activities,
and coordinator of instructional materials.) This is lower

'than some recommendations cited earlier but exceeds others.

 

 

-274-
The seminar participants seemed to be justified in making
this recommendation for the administrative staff.
Their recommended staffing ratio of 210 : one would
represent nearly a tripling of present administrative
assistance at the junior high school level which was found

to be 529 : one, as previously reported.

CHAPTER VIII
DEVELOPING JOB DESCRIPTIONS OF THE JUNIOR HIGH SCHOOL PERSONNEL

An earlier chapter stated that the objectives of the
junior high school could not be attained unless the adminis-
trative activities to fulfill these purposes were identified,
and further, that these administrative activities must be
combined to form positions and that the positions needed to
be related to form the administrative structure. A sugges-
tion was made as to the processes that might be followed
to attain this end. The three steps of defining objectives;
identification of function or activities, which have to be
(performed to fulfill the objectives; and creating positions
and a structure to carry out these functions, cannot be
avoided without risk to the objectives, the functions, and
the structure.

It cannot be overemphasized that it is through its
organization that the junior high school comes to grips with I
its educational tasks. If the school has a sound organiza-
tion pattern, it can fully utilize its personnel, facilities,
and its program and bring them into necessary relationship
that will assure the satisfactory accomplishment of the
objectives for which society created the school. With an

awkward, faulty organization, the school will experience

-275-

 

 

-276-

difficulty in the accomplishment of its goals and may even
find some of its objectives unattainable.

As Hagman pointed out: “In all administration, the
fundamental task is the organizing of the efforts of people.'1
In schools, educational administration can have but one
basic purpose. That purpose is to improve the quality of
the instructional program by facilitating the teaching and
learning process. The basic responsibility of the junior
high school principal, then, is to facilitate, foster, and
implement all the forces that will improve teaching and
learning.

It has been previously indicated that secondary school
principals are spending no more time today than principals
did fOrty years ago in improving the quality of the school's
instructional program. One school superintendent writing
on instructional improvement describes secondary school
principals this way:

’ As a group, high school principals have not achieved
a reputation for instructional leadership. They have
hung up an excellent record in school management, but
are generally reported to have neglected instructional
improvement. They have tended to place faith in the
individualized efforts of classroom teachers rather
than work at a well coordinated instructional program

that would require each teacher's methods to be judged ,
against this overall pattern. They have accepted

 

1Harlan L. Hagman and Alfred Schwartz, Administpation
in P of le Sc ool Executive (New York: Harper and
rothers, 55 , p. .

 

 

-277-

the school as made up of a miscellaneous assortment
of subject fields and as running in that manner.2

There is a number of educators that would share this opinion
with Spears, that principals are not fulfilling their re-
sponsibilities as instructional leaders, but most do qualify
as managers. Some individuals, however, have raised ques-
tions as to the firmness of the principals' convictions and
their knowledge as managers. Yet, it isn't certain that the
picture is as dismal as Mitchum painted it when he said:
Many principals have hurried to the newstand to

buy the current popular journal after having been

asked whether they had read the latest advice on how

to man and manage a well ordered high school. . . .

Almost everyone except the high school principal is

advising the nation on what makes a good high school

program.3

There is no single person in the school system that

exercises more direct influence upon the instructional pro-
gram than does the building principal. The instructional
program is generally, in most schools, a reflection of what
the principal believes, encourages, or neglects. As the
Association for Supervision and Curriculum Development

Yearbook stated it:

 

2Harold Spears, Im rovin the Sn rvision of In-
struction (New Yerk: PrentIce HaII, Ific., I953), p. I37.

3Paul Me MHtchum and Archie G. Richardson, "Problem
in Organizing the School Program to Achieve-Balance," Asso-
ciation for Supervision and Curriculum Development, 1961
Yearbook, Balance in the Curriculum (Washington, D. C.: The
Association, 1961), p. 136.

-273-

The curriculum and the way it is administered,
largely determines the intellectual, emotional and
personal development of each child in the school.
Curriculum, therefore, should be the princi 1's
chief concern. He should contribute active y to
curriculum development and change by means of his own
professional knowledge and skill. . . . If desirable
goals are to be achieved, the principal must create
and maintain within the school a favorable climate for
teaching and for learning. . . . Above all, the prin-
cipal must . . . be the one who makes it possible for
every teacher to achieve the goals for which the
curriculum is designed.h

The principal who neglects this responsibility of
instructional improvement impairs the effectiveness of the
school in obtaining its objectives. Teachers will not per-
form to a high degree of effectiveness with pupils in the
face of administrative indifference. Above all else, the
. principal needs to play the role of facilitator--one who
makes it possible for teachers and pupils to achieve in-
dividual and institutional goals.

Reasong for Principgl's Failure to Improve Instructional
Program

Without analyzing a specific school situation, it is
possible only to generalize as to the reason for a principal
failing to improve the instructional program of the school.
Four possible reasons will be discussed, three of which are.
related to the need for, or lack thereof, of adequate job
descriptions for administrative staff positions.

 

“Ipid., pp. 168-169.

V -279-
Lack of Kngwledge of Job
High school principals in both their preservice and

inservice professional preparation programs have had a
general knowledge of the responsibilities of their position.
‘Most individuals who become principals have had teaching
experience in the secondary schools, so they have had same
first hand experience with the responsibilities of the
principalship. JMost principals should know that the greater
part of their authority and responsibility are assigned to
them. Since the board of education is usually the only
legal authority in a community for the public school, the
principal's authority and obligations are assigned by the
board of education, through the superintendent of schools,
to him. If the board of education, the superintendent, and
the principal are to work together and accomplish the ob-
jectives of the junior high school, there must be an agree-
ment on the functions that the principal is to perform. Per-
haps instructional improvement has been neglected in the
Junior high school because the principal has not been ade-
quately informed as to his authority and responsibilities.
Bent reported a study on this question, and he stated:

. . . about 2/3 of these principals reporting, stated

that their duties were defined by mutual agreement

between the superintendent and the principal. Twelve

‘per cent said their duties were designated by the

superintendent, and ten per cent, by the board of

education. Thirteen per cent stated that their duties
were not clearly defined. In some cases the principals

 

 

-280-

do not have an understanding of what administrative

and an rvisory duties and concomitant authority in-

clude.§e

The point to be stressed.here is that unless the

principal is adequately informed as to his responsibilities
and the relative weight of importance of specific activities
emphasized, he is likely to assume that all activities are
to be treated equally. If it is emphasized, for example,
that the principal is to devote one-half his time to in-
structional improvement, his obligation in the position be-
comes quite clear. Devoting this block of time to one ac-
tivity would restrict, then the ability of the principal to
perform only a limited number of other activities during the
school day. This would affect the job descriptions of all
administrative personnel. An examination would then need
to be made to determine the adequacy of the staff to per-

form all the functions necessary to keep the school in oper-

ation.

Insufficient Staffing

In analyzing the current staff ratios in the status
study of the New York State junior high schools, it was

found that the pupil-administrator ratio was approximately

 

§Rudyard K. Bent and Lloyd E. McCann, Administration

of Secondarg Sghools (New York: .McGraw Hill Book Co., Inc.,
,pOZO

-281-

529 : one. The proceeding chapter cited the various author-
ities in education that advocate that the desirable ratio
of pupils to administrators should not exceed 200 : one.
Further, a case study was cited that had recommended a
pupil-administrator ratio of 180 : one. Comparing the
reCommended administrator ratio to pupils with the ratios
that exist in the schools, it is quite apparent that there
needs to be a doubling or tripling of the staff positions
to adequately administer the Junior high school.

If the junior high schools are as woefully inadequately
staffed with administrator personnel as the data seems to
suggest, it is little wonder that principals are neglectful
in the area of instructional improvement. It would appear
that schools have forced the principal to become a manager
of the school, and he has had to depend upon the individual
teachers to further the instructional program. With the
many activities that must be performed to keep the school
in operation, some activities are surely to be neglected
when the school is inadequately staffed. The neglected
activity seems to be that of instructional improvement.

That the schools are generally inadequately admin-
istratively staffed and that principals are bogged down
with petty details of administration was confirmed nearly
a decade ago. Lauchner spent an academic year visiting
junior-high schools in most areas of the United States. In
a report of this visit to schools, he confirmed to his

 

-282-

satisfaction that principals were finding it impossible to
exert instructional leadership because, as he stated it:
"First let us free the principals. . . . Bogged down with
the busy work . . . cutting stencils, adding up the weekly
milk money, helping set stage scenery. . . . This has been
going on for years."6

Unless communites are willing to provide an admin-
istrative staff of sufficient quantity to perform most of
the activities that must be undertaken to keep the school
in Operation, school principals will not become instructional
leaders. They will continue administering and performing
seemingly petty activities that should be performed by a
person with a lower level of training and will not devote

time to instructional improvement.

Unwillingaess to Delegate Authority

It was stated previously that the New York State
junior high school principals, when they do have adminis-
trative assistants, in most instances are not assigning
activities and obligations to these assistants. Further,

a California study was cited confirming that in that state
also principals were not assigning activities to assistants.

Recently, a study was completed in New York City among 5h

6Aaron H. Lauchner, "What Improvement Can be Made
in Organization, Administration, and Supervision in Junior
High Schools," Bulletin, National Assoc ation of Seconda
School Princi ls, ILII (Apri , , pp. 249-25 .

 

~283-
high school principals who were asked to indicate how 178

administrative responsibilities were performed.- It was
found that 78 per cent of the responsibilities were handled
by the principal alone, or shared with his assistant. One
of the conclusions stated: "Principals in New York City,
do not or cannot delegate a sufficient portion of their
job as educational leaders . . . andare unable to find
time for aspects of their job they considered most important.'7
The assignment of activities and the wise use of
administrative assistants seems to be a particular problem
among building principals. Referring again to the visits
made by Lauchner to junior high schools, he observed this
about assigning activities:

Now and then, however, principals who are blessed
with the help needed to operate a good school remain
bogged down. They just do not know how to delegate
or they won't do it. They have an assistant principal
--but the assistants are never permitted to go it alone,
even in minor cases.

This failure to assign activities to his assistant by the
principal may be partially explained, according to Jacobsen,
by the concept of management the school principal has. On

this point he said:

 

7Leo Weitz, "The Problem of Delegating Responsibility
in a Larger High School," Bulletin National Association of

Secondary School Principgls, cto er, , p. .

Bhucmer’ OB. Cite, p0 2500

-234-

If the principal believes that he must have a
hand in all decisions he will tend to delegate fewer
of his responsibilities and to try to perform per-
sonally or share in the performance of most of his
duties. 0n the other hand, if his perception of his
role is that he should make only the most important
decisions, he will delegate both the authority and
responsibility for most of his work to his subordi-
nate.

It is quite clear that building principals are not
assigning administrative functions to their assistants to
complete even when they have them. This can only be corrected
by developing adequate job descriptions for all administrative
personnel and assigning portions of the necessary functions
that need be performed to each administrative position.
Sharing responsibility and assigning responsibility are
quite different matters, and it appears that most principals
are not confident enough of themselves or of their assistants
to give up control over even insiginificant matters which

could be routinized.

Lack of Job Descriptions for Assistants

Not only are principals failing to assign adminis-
trative activities to their assistants, they are severely
handicapping the services of administrative assistants when
they have them. This statement, made by Corbally, will be
useful to illustrate this point:

 

9Paul B. Jacobsen, William C. Reavis, and James D.
Longsdon, The Effective School Princi al (New York: Prentice
Hall’ 1959 ' p. O

-235-
At this very moment, many assistant principals-~in
secondary schools--throughout this country are just
not sure of where their authority and responsibility
--begin or end. No clear cut job analysis has been
made, and the delegation of responsibility to them
has been left pretty much to chance. . . . A person
can hardly be an effective member of the team, when
he is unsure of his role, when he hesitates or feels
that he has to clear with the man above before he
aCtSOJ-O

This statement points out the fact that in order
to have the competence and full value of performance of an
assistant, he must know what is expected of him. It further
points out the importance of having job descriptions for
each member of the administrative staff which point out the
work they are to perform. Without such descriptions, the
organization is both ineffective and inefficient, as well
as wasteful of personnel.

These four reasons then: lack of knowledge of the
job to be done, the inadequacy of the administrative staff,
the improper assignment of activities, and lack of definite
job descriptions for assistants, may all influence or ex-
plain in part at least, the failure of the principal to
devote more of his time to instructional improvement. With
the exception of providing adequate personnel, all the other
factors can be corrected by analyzing and defining the jobs

of individuals on the administrative staff. The job

 

10John E. Corbally, T. J. Jensen, and W. Frederick

Staub, Ed cational Administration in th econda Sehool
(Boston: Allyn and Bacon, Inc., I951}, p. 535.

—286-
description is imperative to effect organizational behavior

in the junior high school to accomplish its objectives.

Developing Job Descriptions

It was suggested in a preceeding chapter that,
prior to the employment of personnel to perform the admin-
istrative functions of the school, it was necessary to
identify the activities to carry out its objectives. Further,
decisions must be made as to the administrative structure
of the organization. This procedure is in accordance with
Griffiths when he suggests:

. . . the delineation of evaluative criteria which

must proceed the writing of job descriptions, namely:

1. The functions of administration that are to be
performed.

2. The organizational concepts under which the school
is functioning.

3. The way in which these functions are categorized.

 

The formation of a position is done on the basis
of a job analysis. A job analysis has been defined by
Davis as: "A technique for investigating general work
assignments. It collects and classifies information con-
cerning the characteristics and requirements of a specific

general assignment."12 It is basically, then the process

 

llDanield E. Griffiths, et al., 0r anizin Schools
for Effective Action (Danville, Ill.: The interstate Frees,
l , p. A7.

1

2Ralph Currier Davis, The Fundamentals of.Mana ement
(New York: Harper and Brothers, 1931), p. 23:.

 

~287-
of studying critically the duties and Operations of a job.

Once it is determined what a position is, a job description
can be made of the position.

A job description, according to Dale, should include
as a minimum:

Description of responsibility

Description of authority ’

Organizational relationship (job title)

The basic functions of the job (broad objectives,
purposes and actions of the job)

_e) Provisions for coordination

f; AccOuntability (to ensure compliance)

g Duties common to all executives. . . .13

D-OO‘KD

Griffiths describes a job description in another way by
stating:

. . . it is the written record of the function of the
position to be filled. It is written as nearly as
possible in operational terms. The job description
should include what the person is to do; how in
general be is to do it; what he should do in it; and
how well the job is to be done. The job description
also details the relationship of the job occupant

to others in the system.1h

It was also pointed out earlier that once the job
has been described and the administrative structure agreed
upon, the administrator is ready to seek candidates to fill
the position, using the techniques suggested earlier. This
procedure is also in accord with Griffiths, when he states:

 

13Ernest Dale, Plannin and Develo in the Com an
Or anization Structure_(New York: American fignagement
Association, I§53), p. 151.

“Griffiths, at 310, 020 Cite, Po III-90

 

-288-

Job descriptions should be prepared prior to em-
ployment . . . if we are to have effective adminis-
trators, we must first describe the situation and then
find the man who can fill the requirements. . . . The
wise administrator must guard against the possibility
of varying talents or desires of his staff becoming
the criteria upon which the administrative structure
is built.15

Further, it is quite important that, after a position

has been described, the title of the position be carefully
chosen. A title serves two purposes. First, it helps
identify and define the nature of the work, its relative im-
portance, authority, and responsibility. Secondly, it serves
to indicate that the person possessing the title is competent
and qualified to perform the task required in that position.
A title is the nature of a confidence. It signifies a

trust and faith in the individual and in his ability to see
that work.will be satisfactorily performed.

To summarize what has been said about developing

job descriptions:

a. It must be known what administrative functions
must be performed to fulfill the organizational
objective.

b. An analysis must be made to determine the duties
and operations of a job.

c. The number of individuals needed to perform these

functions must be determined.

 

15Ib1d., p. 150.

 

-289-
d. The administrative structure must be determined
to relate the positions in the organization.
With this basic information it is possible to proceed to
develop job descriptions for the administrative staff of a
school building. .

To illustrate how this process is utilized, job
descriptions will be constructed for a school building using
data previously presented. It must be assumed:

a. That the A3 administrative functions previously

identified by the seminar groups are acceptable

b. That the positions cited as administrative by

the seminar groups are acceptable

c. That the number of positions needed to fulfill

the objectives cited are necessary

d. That a flat administrative organization is

acceptable

For the convenience of the reader following this
procedure, a restatement of administrative functions to be
performed and the administrative positions needed to perform
the functions will follow.

Administrative Functions
Improving the Instructional Program

Revising the curriculum and selecting curricular
materials

Assisting teachers in diagnosing the learning
difficulties of pupils

-290-
Helping teachers in planning remedial instruction

Making recommendations to superintendents for
policy formation and revision

Directing and coordinating the guidance program
Directing the program for exceptional children
Directing the health and safety program
Directing the summer recreation program
Coordinating the use of instructional materials
Directing and supervising the pupil activity
program
WOrking with pupils
Controlling pupil behavior
Accounting of pupils
Scheduling of pupils
Maintaining pupil personnel records
Directing the program for orientation of new
students
Obtaining and Developing personnel

Selecting and recommending to the superintendent
for employment of personnel

Inducting and orienting personnel
Supervising personnel

. Evaluating personnel--recommendation for promo-
tions and retention

Preparing and maintaining staff personnel records
Selecting substitute teachers

Directing and coordinating inservice training
program

' -29l-
Counselling personnel

Scheduling personnel
Maintaining effective interrelationships with the
community

Helping the superintendent to determine the
educational needs of the school

Preparing special reports and bulletins regarding ‘
the school

Conferring with parents and other lay groups
Working with P. T. A. and other citizen groups
Preparing public relations information

Developing procedures for reporting pupil pro-
gress to parents

Planning and coordinating the public relations
program for the school

Providing and maintaining funds and facilities
Preparing school budget requests
Managing budget appropriations
Plant planning and construction
Administering the insurance program for students
Directing the program of plant maintenance
Directing the school lunch program
Supervising intra-mural activities

Determining specifications for supplies and
equipment

Requisitioning supplies and equipment
Distributing supplies and equipment
Inventorying supplies and equipment

-292-

Preparing reports for the superintendent
It should be pointed out that if the building prin-
cipal had no administrative assistants it would be necessary
for the principal to carry out these functions alone, in
order that the school might fulfill its objectives. Even
though the majority of these administrative activities are
to be assigned to his assistants, he is accountable to the

superintendent of schools for their performance.
The Desired Administrative Positions

The following administrative positions were desired
by the seminar groups to carry out the objectives of the
I school:
Building principal
Assistant principal for instruction
Assistant principal for business
Coordinator of instructional materials

Coordinator of pupil activities

Organizational Pattern

Organizational Chart, Figure 1, illustrates the
concept of a flat administrative organization. It is called
flat since it tends to reduce the levels of authority be-
tween the classroom teacher and the building principal. It
might also be called a horizontal organization since the
administrative staff will deal with a broad scope of subject

matter areas.

 

-293 ..

 

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The building principal is considered to be the
administrative head of the building. Administrative func-
tions that are assigned and performed by his administrative
associates have been assigned to free the principal to carry
out the most important function, the improvement of the in-
structional program.

All administrative positions are designed to facili-
tate the teaching-learning process. The building principal
is the coordinator, consultant, and educational leader of .
the school. On this point Griffiths stated:

The overall responsibility of the principal is to pro-
vide leadership and coordination which will encourage
the staff, the community, and the students to work
toward the best school program that they (together)
can conceive. Specifically it is the role of the
principal to provide:

1. A climate of efficiency, cooperation, service,
and stimulation within which the school program,
as it exists, can operate most effectively.

2. Leadership and coordination in periodic and con-
tinuing evaluations of the effectiveness of the
total school program in meeting the needs of the
Ezpils.

3. adership and coordination in continuous revision

of the total sghool program to meet the needs of
the students.1

Job Descriptions

The first job to be described is that of the building
principal. The job descriptions that follow are again, only

 

16Griffiths, gpp_gip-, Po 173.

 

-295-
illustrative of a subdividing of the administrative functions.
Under each position functions are divided into four categories:
major-assigned, minoréassigned, major-shared, and minor-shared.
The differentiation between major and minor functions re-
volves around the amount of time the individual filling a
position might be expected to spend on a particular function
and the complexity of the function, that is, whether or not
the function is routine in nature. An assigned function is
defined as a function for which the person to whom it is
assigned is responsible and for which the individual is
assigned sufficient authority to carry out the responsibility.
A shared function is one in which the person participates,
but is not held directly accountable.

Building Principal

Since the building principal is the educational
leader of the school and since he is largely responsible for
the improvement of the instructional program, the following
administrative functions are the major activities that the
principal performs:

Revising curriculum

Directing the summer recreation program

Inducting and orientating personnel

Supervision of personnel

Evaluation of personnel--recommendation for promotion
and retention

Preparing and maintaining staff personnel records

Counseling personnel

Scheduling personnel

Developing procedures for reporting pupil progress
to parents

 

-296-

These functions are administered in a cooperative
manner with the teaching and administrative staff. The in-
structional council is used extensively in the administrative
process as a coordinative and participating vehicle for the
staff to improve the over-all instructional program.

In addition, the principal is responsible for the
organization and structure. This has reference to the pro-
cesses cited earlier that contribute to the organization
and every part of it to the attainment of the institutional
objectives. It furnishes the means whereby individuals in
the school accomplish individual as well as organizational
goals. 1

The principal shares with the other members of the
administrative staff and the faculty these functions:

Making recommendations to the superintendent for
policy formation

Controlling pupil behavior

Selecting and recommending to the superintendent for
employment of personnel

Directing and coordinating the inservice training
program

He ping the superintendent to determine the educa-
tional needs of the school

Pre aring special reports and bulletins regarding
t e school

working with the P. T. A. and other lay groups

Conferring with parents and other groups

Preparing public relations information

Planning and coordinating the public information
program for the school

Preparing school budget requests

Plant planning and construction

Preparing reports for the superintendent of schools

The building principal has nine administrative

functions that he performs alone. With one exception, the

d-

 

-297-
direction of the summer recreation program, his activities
deal with the instructional program and instruction per-
sonnel. He handles the summer recreation program because
he is the only 12 month administrator in the building. The
principal shares fourteen activities with either his ad-
ministrative associates or the entire staff.

It will be observed that certain areas of account-
ability will be repeated. In the case of shared functions,
this duplication needs no further explanation. The person
sharing the functions are assisting the principal in carrying
out an administrative function. In the case of assigned
functions, it means that the person to whom the principal
assigns the function might logically assign it in turn to
one of his associates. For example, the principal might
assign the selection of curricular materials to the assistant
principal for instruction. This person might assign the
work needed to carry out this function to the coordinator
of instructional materials. In cases such as this, final
authority for the job can be determined by reference to the
organizational chart which indicates lines of authority
among the persons involved in carrying out the various ad-
ministrative functions.

Another disparity which will be readily noted is
the number of functions listed under each position. Much

of this is, of course, basic to the type of position, but

 

-298-

part is certainly duezalso to the fact that certain functions
take much longer to perform than others. For example, the
single function of coordinating the use of instructional
materials covers the major portion of one administrator's
time. In developing meaningful job descriptions, this should
be taken into consideration by subdividing some of the listed
functions.

Assistant Principal for Instruction

It will be observed from the organization chart that
this position is structured in such a way that the person
has no authority over teachers for their performance of
teaching. In this respect it may be said that he has a
staff position. This position serves as a resource or con- .
sultative role to the principal and teachers in the instruc-
tional program. The principal judges or evaluates the effec4
tiveness of the teaching ability of staff members, whereas
the person in this position assists teachers in what ever ways
he may be called upon by them to improve the instructional
program.

Further, this position has line authority over the
coordinator of instructional material, the guidance per-
sonnel, and the health services. The organization chart
indicates this relationship. In these areas the individual
is responsible for coordinating special services in the
instructional field for teachers and pupils.

 

-299-
This position has the following major assigned
functions:

Selecting curricular materials

Assisting teachers in diagnosing the learning diffi-
culties of pupils ‘

Helping teachers in planning remedial programs

Directing and coordinating the guidance program

Directing the health and safety program

Inducting and orienting instructional personnel

The mdnor assigned functions are:

Directing and supervising pupil activity programs
Coordinating use of instructional materials
ZMaintaining pupil personnel records

Directing programs for the orientation of new students

Since this position needs a person with a strong
background in curriculum development and since the assign-
ments are basically in the field of instructional affairs,
the individual shares in these functions:

Major shared functions

Revising curriculum

Making recommendations to superintendent for
policy formation and revision

Directing the program for exceptional children

Controlling gupil behavior

Selecting su stitute teachers

Selection and recommending to the superintendent
for employment of instructional personnel

Directing and coordinating the inservice training
program

Counselling instructional personnel

Scheduling instructional personnel

Developing procedures for reporting pupil progress
to parents

IMinor shared functions

Scheduling of pupils

Helping the superintendent to determine the edu-
cational needs of the school

Conferring with parents

‘Wbrking with the P. T. A. and other citizen groups

 

-300-

Preparing public relations information

Plant planning and construction

Determining specifications for instructional
supplies and equipment

Preparing reports for the superintendent of
schools

Assistant Principal for Business

The major activities of this position are directly
related to the business management affairs of the school
as well as those activities of the non-instructional per-
sonnel. This position is designed to relieve the principal
of all activities that might be termed "managerial." This
position has no authority over the classroom teacher but
assists them when called upon for services. Teachers might
request, for example, that the individual arrange fer trans-
portation for a class group to visit the city hall or the
city water works. The person in this position has more
interest in the business affairs aspect of school adminis-
tration than in the instructional program. The major assigned
functions are:

Directing and supervising pupil activity program

Accounting of pupils

Scheduling of pupils

Inducting and orienting non-instructional personnel

Supervising non-instructional personnel

Evaluating non-instructional personnel

Preparing and maintaining non-instructional personnel
records

Directing and coordinating the inservice training
program for non-instructional personnel

Supervising intra-mural activities

Determining specification for supplies and equipment

Requisitioning supplies and equipment

Distributing supplies and equipment

 

 

-301-

Inventorying supplies and equipment
Counselling non-instructional personnel
Scheduling non-instructional personnel
Preparing the school budget

Managing budget appropriations

 

This position has only one minor assigned function.
This is to administer the insurance program.fbr students.
Since this function is for a short duration in the fall of
the year, it is considered a minor assignment. The school
nurse assists in this activity and during the school year
processes student accident claims and makes the various re-
ports to the insurance company.
The major shared functions'are: .
Making recommendations to superintendent for policy
formation and revision
Selecting and recommending to the superintendent
for employment of non-instructional personnel
Preparing school budget requests
The minor shared functions are quite similar to
those of the other administrative personnel and shared in by
the teachers:
Controlling pupil behavior
Helping the superintendent to determine the educa-
tional needs of the school
Preparing special reports and bulletins regarding
the school
Conferring with parents and other lay groups
working with the P. T. A. and other groups
Preparing public relation information
Preparing reports for the superintendent of schools
This position has line authority over all non-
instructional personnel and over the position of the co-

ordinator of pupil activities.

 

-302-

Coordinator of Pupil Agtivities

This position is designed to administer all student
activities that are not under the direction of classroom
teachers as a part of the instructional program. Four of
the #3 administrative activities are assigned to this
position. These major assigned activities are:

Directing and supervising of the pupil activity program

Directing the program for orientation of new pupils

Managing the extra-classroom activity funds
Supervising the intra-mural activities

 

The major shared functions include:
Directing the health and safety program
Scheduling of pupils
werking with P. T. A. and other citizen groups
The minor shared functions include:
Directing the program for exceptional children
Preparigg special reports and bulletins regarding the
schoo '
Preparing public relations information

Preparing the school budget request
Preparing reports for the superintendent of schools

Coopdinator of Iastructional Materials
This position is the administrator in charge of the

instructional materials center and has the administrative
duties fer its operation. All of his administrative activi-
ties are directly related to the instructional program. The
assistant principal fer instruction is responsible fer
coordinating these activities. This position has two major
assigned activities:

Selecting curricular materials
Coordinating the use of instructional materials

 

-303-
It is readily understood by the reader that the adminis-
trative responsibilities of the instructional materials
center, together with the responsibility for the selection
and coordinating the use of the materials, are more than
One person can handle in a school of 700 to 900 pupils.

The major shared activities include:

Determining specification for instructional supplies

and equipment

Distributing instructional supplies and equipment

Inventory of instructional supplies and equipment
The minor shared functions include:

Helping the superintendent to determine the edu-

cational needs Of the school

Preparing school budget requests

Thus, there has been constructed job descriptions
for an administrative staff, utilizing the administrative
activities that were developed to fulfill the Objectives of
the school. The role Of the principal in the structured
organization was designed so that he could spend a major
portion Of his time working to improve the instructional
program.

These administrative activities could have been
assigned in any number of ways, to many different positions,
should that have been the desire Of the plan that was to
have been followed. Other positions can be added that
will rather radically change the entire concept of the

organization. For example, assume that it is the desire to

have subject area coordinators, in English, science, mathematics,

 

-304-
language, social studies, and physical education, all with

line authority over teachers. The function of these coordi-
native positions would be:
Major shared functions

Revising curriculum

Selecting curricular materials

Assisting teachers in diagnosing the learning
difficulties of pupils

Helping teachers in planning remedial instruction

Directing programs for exceptional children

Inducting and orienting instructional personnel

Counselling instructional personnel

Selecting and recommending to the superintendent
for employment Of instructional personnel

The minor shared activities would include:
Making recommendations to the superintendent for
policy formation and revision
Coordinating use Of instructional materials
Selecting substitute teachers
Directing and coordinating inservice training
program
Developing procedures for reporting pupil progress
to parents
Preparing school budget requests
Preparing reports for the superintendent Of schools
In this case, it is probable that.the assistant
principal for instruction would coordinate the activities
Of these individuals, and probably have line authority over
teachers. The role Of the principal then, is rather dramati-
cally changed from one of instructional leadership to one of
managership. In the event these subject area coordinators
were relieved from some teaching duties, as is usually the
case, the position of assistant principal for business might
be unnecessary, if the principal assumed those activities.

When a careful examination of the #3 administrative

 

-305-
functions is made, and when it is recognized that there are
many other minor activities that need to be performed.and
coordinated during the school day, it is quite apparent

that to insure that instructional improvement occurs, the
school must be adequately staffed with administrative per-
sonnel to operate the school effectively and efficiently.
Further, to fulfill the Objectives of the school, it seems
mandatory that each position must have a job description
describing the specific activities to be performed by that
position. .Each school, however, must develop its own list

Of activities that need be perfOrmed, identified from the
purposes of the school, the needs of the pupils, and the
community in which they live. It would be most unwise to
adopt these job descriptions for any junior high school
administrative positions. These descriptions were to illus-
trate the process that must be followed if the administrative
.Organization is to be effective and personnel time is to be

used wisely.

 

CHAPTER II
DEVELOPING PATTERNS OF ADMINISTRATIVE ORGANIZATION

.Previous chapters have identified many of the nec-
essary elements of organizationand staffing considered by
many authorities to be most applicable to the modern junior
high school. There has been presented statements of pur-
poses, an identification of functions to accomplish these
purposes, the need for job descriptions, and the need to
make decisions on the organizational structure before at-
tempting an administrative staffing of the schools.

This chapter answers the fifth question Of the study:
What patterns of administrative Organization will relate
these positions in such a way that the needed functions will
be performed and the stated purposes will be served? It
will be illustrated how the basic concepts of organization
and staffing, together with the suggested guidelines, can
be utilized to design the administrative structure of a
junior high school enrolling from 750 to 900 pupils. Dif-
ferent organizational charts and staffing patterns will be
developed to demonstrate that by using the same number Of
administrative personnel and basic job descriptions of staff,
a junior high school can be administratively organized in .
different ways. Each of the organizational patterns might

-306-

 

-3 07-

be said to represent different principles Of organization.
Three different organizational structures were suggested by
the seminar participants to illustrate the structural re-
lationships of positions to fulfill the purposes of the junior
high school. It is possible, by combining basic concepts

of organization in a variety of ways, to construct different
kinds of organizational patterns or structural designs for
the junior high school.

Since it is possible to design an administrative
structure in different ways, it is important to consider
the reference values that are inherent in the culture in
which the organization is to function. To many authorities,
in educational administration,most schools administrative
structures are the anthesis Of our cultural doctrines. TO
this point Campbell has so cogently stated:

Our forefathers in government established prin-
ciples that would further the aims of a free society,
but they neglected to suggest a structure in educa-
tional administration that would be closely consonant
with these beliefs. Educational administration is
a lineal descendant Of church, military, and big busi-
ness administration with its line-staff structure of
organization. Being a direct decendant, it has copied
the value judgements, practices and procedures of these
institutions.

No one will deny that the basic purpose of our system of

public education is to develop, preserve, and further Our

 

1ClydeM. Campbell, "Administrative Leadership and
Rgference Values," Educational Outlook, XXVII (January, 1953),
h .

 

-303-

democratic way of life. TO further this democratic idealism
in our education institutional life, the administrative
structure Of our schools should reflect these cultural values.
What is needed in educational administration to further
this goal, Campbell suggests, is:
. . . a structure is needed in educational admin-
istration congruent with democratic ideas. . . .
Structure in the main determines the effectiveness
Of program and the ends that ultimately are to be
achieved. Clearly, it should be recognized that
the line and staff structure may in certain instances
be more antipathetic than in harmony with democratic
values.2

An explanation of the existance of this paradoxical'
situation between concept and practice in the administrative
structure Of our schools will not be attempted. Suffice
to say that many authorities in educational administration
recognize its existance and are assiduously attempting its
elimination.

One of the patterns of administrative structure
suggested by the seminar groups will be called Flatville
junior high school. The only significance Of the name
Flatville is to connote a flat administrative structure as
previously described, and it appears to be easier to use
the name Flatville in the presentation of this administrative
structure, rather than giving a formal explanation Of the

concept each time it is used in the text. This administrative

 

f

znido , “8-490

 

-309-

organization is designed with no intervening lines Of
authority between the building principal and classroom
teachers. It has de-emphasized a departmentalization of
the educational program by subject matter areas. It seeks
to foster a cooperative method of administrative and teacher
‘relationship rather than encourage domination over teachers
by administrators. Many educators would consider this ad-
ministrative structure to represent a more democratic ad-
ministrative organization. It has values more commensurate
with our democratic society and is one in which the building
principal truly functions as the educational leader of the
school.

The second pattern of organization suggested by
the seminar participants will be called Lineville junior
high school. This basic pattern Of organization emphasizes
a vertical departmentalization of the school's instructional
program with echelons of administrative personnel over
teachers. It represents a pattern of organization whose
basic ideas has been borrowed from Older institutional or-
ganizations, as well as the organization concept of many
business and industrial firms. To many educational author-
ities, it represents a "power over," or more authoritarian
concept of administration. It is characterized by its
pyramidal altitude Of administrative staff over teachers

and its one way communication-~from the top down.

 

-310-

The third pattern Of organization was suggested by
one seminar group in an attempt to design an administrative
structure and staffing pattern within the democratic tra-
dition, but whose emphasis is upon a more personalized or-
ganization pattern. It is an attempt to permit the maximum
amount of Organization flexibility for both pupils and
teachers. It strives to secure a close interpersonal re-
lationship between teachers and the administrative staff as
well as this close relationship between pupils and teachers.
This administrative structure emphasizes the organization
*of small administrative units within a large school popula-
tion.

These three patterns of administrative organization
and staffing should demonstrate that a school can be ad-
ministratively structured in a variety of ways, all designed
to perform the functions Of administration and to fulfill
the purposes Of the school. What was not stated, but implied,
by the seminar participants, was that administrative structure
will reflect the values and ideals of the group designing
the organization. The contrast between the more desirable
democratic structure of Flatville and the more militaristic
and autocratic pattern of Lineville should be apparent.

To design these different administrative structural
patterns of organization, however, it is necessary to state
some basic assumptions that underly the structure and to
utilize aspects of the administrative process heretofore

presented.

 

-311-

Basic Assum tions

1. In the junior high school the organization exists
to serve the educational purposes and Objectives Of the
school. Without purposes an organization cannot exist. TO
define purposes of the junior high school, the board of
education should seek the participation of citizens of the
community, the teaching and administrative staff, and the
pupils to help perform this most important function. If the
purposes that are identified could be stated in operational
terms, it would tend to give the school staff a better con-
ception Of specific ends the school is tO achieve.

2. The administrative and special service staff
exist to help the classroom teacher provide the best possible
instructional program to meet the needs Of pupils and the
community it serves. It is fully recognized that the edu-
cation Of children is not accomplished by the school alone.
The family, the church or place of worship, the community,
the peer group, and other facets of the environment all
contribute to one's education. However, since the specific
purposes Of the school can only be achieved by the classroom
‘ teacher, all school personnel and positions in the school
are designed to assist teachers in attaining these Objectives.
The admdnistrative organization and staffing pattern are the
means of securing the goals of the school and are not an end

in themselves.

 

-312-

3. There can be but one administrator in the build-
ing responsible for coordinating all the activities that
need be performed to meet the schools Objectives, and this
should be the building principal. The administrative or-
ganization should be so designed that the building principal
has the authority and is charged with the responsibility to
work with the school patrons, the building personnel staff,
the board of education, and the school's administrative per-
sonnel to provide the most effective instructional program
for pupils. He works with and through the entire school-
community complex to achieve the purposes of the school.

To secure this program, all personnel in the school are
administratively accountable to the building principal and
only in the principal resides the final administrative
authority in that building.

A. The three constructed patterns Of administrative
organization and staffing are based on decisions previously
made on:

a. The span of control

b. The degree Of centralization

c. The use Of line and staff

d. The use of councils

e. The assignment of authority and responsibility
f. The assignment of activities

g. The desirability Of single or multiple control

h. The number of levels of administrative authority
needed in the organization

 

i.

-313-

The degree to which dual supervision should
be utilized

5. The data previously presented that must be

utilized to construct these organization and staffing

patterns include:

a.

b.

C.

d.

f.

g.

The purposes of the school as identified by
the seminar groups

The administrative functions to fulfill these
Objectives as identified by the seminar groups

Selecting basic conce ts Of organization pre-
sented to develop a p an of organization that
the basic design represents

Relating the necessary functions of adminis-
tration to farm specific administrative
positions

The job descriptions Of positions previously
constructed from the activities necessary to
meet the school's Objectives

The pupil-administrator ratios of personnel
ratios recommended by the seminar groups

The suggested guidelines fOr administrative
organization and staffing

Flatviale Junior High School

Flatville junior high school has 900 pupils. The

staff includes, as shown in Figure 2, in addition to its

teachers, the following administrative personnel:
Full time building principal

Two assistant principals; one for instruction and
one for business management

A coordinator of instructional materials

A one half-time coordinator Of student affairs

 

-31“-
This school is numerically well staffed with administrative
personnel. It has the numerical equivalent of four and ‘
one-half full time administrators. This administrative
staff has a pupil-administrator ratio of 200 : one as has
been recommended.

In addition to the teaching and administrative
staff, the school has a one half-time psychologist, three
guidance counselors, a school nurse, a part-time dental
hygienist, a librarian, a reading consultant, and a part-
time speech correctionist. It is recognized as being well
staffed, providing services to teachers and pupils needed
to fulfill the needs of the pupils and the aspirations of
the school patrons for a quality instructional program. The
teachers are accountable to and work directly with the build-
ing principal. There are no intervening levels Of authority,
nor do any Of the administrative or consultative staff have
authority over the classroom.teacher.

The assistant principal for instruction reports
directly to the building principal. In his position he
serves as an instructional consultant to the principal and
teachers and works with them, at their request, on instruc-
tional matters. He does not participate in the evaluation
of teachers nor does he have any line authority over them.

He assists the principal in the coordination of the in-
structional program and when requested by the principal con-

ducts studies and research on the effectiveness of the

 

-315-

 

 

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-316-
instructional program. He has been assigned line authority
and coordinates the guidance program, the health and safety
program, the instructional materials center, and the remedial
instruction program. He also coordinates all special serv-
ices provided tO assist those pupils that have learning
difficulties.

The assistant principal for business also reports
directly to the principal. He has been assigned all the
responsibilities related to the management of the building
and the supervision Of non-instructional personnel. He has
line authority over the custodians and matrons, the cafe-
teria personnel, and the clerical and secretarial staff.

He has line authority over the coordinator Of pupil activites
and other instructional personnel, when they are engaged in
the extra-mural or intra-mural athletic and activities pro-
gram. He handles all the business affairs of the school,
such as budget-making, requisitions fOr supplies, pupil
accounting, and other similar managerial type activities.

His positions could he basically described as being re-
sponsible for administrative activities not directly related
to the teaching process.

The coordinator of instructional materials is re-
sponsible to the assistant principal for instruction. His
background of training is that Of a librarian, but in ad-
dition he has had specialized education in the use of all

kinds of mechanical and electronic teaching aids. He is

 

-317-
responsible for the effective use and operation of the in-

structional materials center and assumes the administrative
responsibilities in connection with its operation. The
librarian and the technicians are under his line authority.
He organizes and sponsors the student technician corps, a
group of pupils who manipulate and Operate the mechanical
and electronic teaching aids throughout the school fer the
teaching staff.

The coordinator Of pupil activities spends approxi-
mately one-half time administering the pupil activity pro-
gram. This person works directly with the assistant principal
for business. The basic responsibilities of this position
is to direct all non-class room activities of pupils. These
include the sponsoring of the student council, the intra-
mural athletic program, the pupil activity program, and re-
lated responsibilities. The individual sponsors such other
activities as the student hall guides, the cafeteria monitors,-
the ushers and ticket takers, and other student groups who
participate in the management Of pupil affairs.

The school has two advisory and planning councils.
The purpose of these councils is to secure coordination,
cooperation, participation, communication, and evaluation
within the organization. Coordination is achieved through
the interpersonal relationships of people in the school.

The staff exchanges ideas, ideals, prejudices, and purposes
through direct personal contact and, with the understandings

 

-318-
gained, find ways to achieve both personal and organizational
goals. Coordination seeks to achieve a consensus on methods
and actions. Coordination cannot be achieved without com-
munication. Administrators probably perform best in their
positions when they have a full understanding of the Ob-
jectives to be attained and the general and specific means
of reaching them. It is through the councils activities that
the individuals approach the "team work" concept so nec-
essary to secure the maximum effectiveness and efficiency of
the organization.

The principal has the authority to disregard the
council's recommendations. However, he rarely does so be-
cause he has confidence in this group process.

One of the councils is the administrative council
which consists of the principal, the two assistant principals,
the two coordinators, and three faculty representatives. The
council meets weekly to discuss matters that deal with all
operations of the school organization, policy matters, man-
agement affairs, and problems related to the administrative
process. The assistant principal for instruction serves
as the chairman of the group and prepares the agenda for
these meetings. Other members Of the staff are invited to
attend the meetings when the council has under discussion
or consideration any problems or subject areas Of the school
program with which they are concerned or when the individuals
can make a contribution to the groups with their specialized

knowledge.

 

-319-

These weekly meetings are designed to coordinate
the activities Of the administrative "team" as well as to
advise the principal of problems or progress made on the
solution of problems under consideration. Communication is
two-way, the staff informs the principal and the principal
informs the staff of school wide problems from meetings
with the district administrative personnel. These meetings
are designed to help the staff share and participate in
decision-making, as well as to inter—change information and
ideas for the betterment of the schools Operation.

I The second council has been named the instructional
council. This group includes the principal, the assistant
principal for instruction, the coordinator Of instructional
materials, the psychologist, the counselors, and a teacher
representative from each grade level of the school. This
group meets every Mbnday as an advisory group to the principal
on instructional affairs. In addition, they perform.the fol-
lowing:

a. They plan the evaluation program designed to
identify how well the outcomes of the instructional program
is meeting pupils needs and the Objectives of the school.

b. From the evaluation data they suggest adjustments
in the instructional program to meet the needs Of pupils
and the cOmmunity.

. c. They evaluate the goals Of the school and coordinate

the instructional program to meet these goals.

 

-3 20-

d. They plan the program Of instruction to meet
the needs of all pupils attending the school.

6. Under their direction, the assistant principal
for instruction conducts studies and research On how they
might best structure the instructional program.

f. Programs Of inservice education for the instruc-
tional staff are planned and sponsored by this group.

This council, in effect, plans, evaluates, coordinates,
directs, controls, and organizes all of the school's program
of instruction tO meet its objectives. The classroom teachers
have the responsibility of reporting council activities to

the general faculty.

Since all patterns of administrative organization
.and staffing are designed to facilitate and improve the
teaching-learning process, the organization of the Flatville
school represents only one of the many ways an administrative ’
structure may be designed. The uniqueness Of the Flatville
patterns is in its provision to provide a curriculum organi-
zation pattern, which has as its foci the needs of pupils
and the Open society in which they live. This is consistent
with the broad purposes of the school as they were previously
identified.

While there is an adequate staff of instructional
service personnel for teachers, nevertheless the classroom
teacher is the expert who knows best the instructional pro-
gram that pupils in her unit should have and is responsible

 

-321-
for presenting that kind Of a program. The instructional
service personnel are used by the teacher only when their
specialized knowledge will be of benefit to the teacher or
the pupils. The principal may impose instructional service
personnel only when, in his opinion, the teacher is not
performing adequately in the classroom.

The Flatville organization serves ideally for the
principal to function and exercise his role to improve the
instructional program of the school. The adequate staff
of administrative assistants, with their identified roles
and assigned authority and accountability, should free the
principal to spend at least 50 per cent of his time solely
on the improvement of instruction. With this organizational
structure and staffing program, the needs Of the teacher,
the pupils, and the community should be fulfilled.

The design Of the Flatville school places a premium
on the "teach approach" to secondary school administration.
It perhaps increases the need for cooperation and free
channels Of communication, as well as the need for the ad—
ministrative staff to adhere to basic Operational policies.
Through the job descriptions and the organizational chart
it should convey to all individuals that its pattern is
designed to release the creative ability Of all individuals.

TO summarize the unique features Of the Flatville
organization and staffing pattern, it has provided these

advantages:

 

-322-

1. It has been so designed to strengthen and nourish
democratic values and to encourage cooperation rather than
dominate over people.

2. It has been so designed that the building prin-
cipal assigns functions to his assistants, so that he may
assume the role Of instructional leadership considered most
important by educational authorities.

3. It has provided a curriculum organization pattern
focused on serving the needs Of pupils and the community
in the democratic tradition.

a. It has recognized the important concept that the
classroom teacher, is the instructional expert and that all
other instructional personnel serve as auxilliary services
to the teacher.

5. It has provided the means whereby all the re-
sources Of the school can functionally serve the individual
needs of the pupils.

6. It has made provisions that the individuals goals,
as well as the organizational goals can be readily achieved.

7. It has provided for institutional flexibility to
capitalize on the creative ability Of all personnel.

8. It has defined the tasks for which each person
is accountable.

9. It has a structure that places responsibility
for the job to be done.

-323-
10. It has a free two-way means of communication
between all personnel dealing with pupils and teachers, and

between teachers and administrative personnel.

Lineville Junior High School

Lineville Junior High School has 900 pupils. It
has a pattern Of administrative organization illustrated
in Figure 3, which includes a total Of eleven administrative
positions. They are:

Full time principal

Two assistant principles: one for instruction and
one for business

One half-time coordinator Of curriculum materials

One half-time coordinator of pupil activities

Six part-time subject area coordinators

These eleven persons are the equivalent of five
full time administrators. The subject area coordinators
are relieved from teaching responsibilities one period each
day to work with teachers in their subject areas specialties.
The pupil-administrator ratio is 180 : one, somewhat lower
than what many authorities have recommended as an ideal
pupil-administrator ratio. This school has designed its
admdnistrative organization, particularly in the instructional
area, around subject area coordinators. These coordinators
are in the areas of English, social studies, mathematics,

languages, science, and physical education. Their positions

FIGURE 3

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-325-
are structured in such a way that they exert line authority
over the classroom teacher in their area of specialization.
In this administrative organization, the classroom teachers
are responsible to the subject area coordinators. The sub-
ject area coordinators are directly responsible to the
assistant principal for instruction, who is in turn, respon-
sible to the building principal.

In addition to this administrative staff, there is
a one-half time psychologist and three guidance counselors,
one of whom is designated as the head of the guidance de-
partment. There is also a school nurse, a part-time dental
hygienist, a reading consultant, and a part-time speech
correctionist.

The principal of this building in Lineville firmly
believes in the span of control of individuals, and this
span should not exceed six or seven persons at the most.
Therefore, the administrative structure reflects this con-
cept.

The role of the principal in this school would be,
by many educational authorities, characterized as being one
of a manager rather than one of instructional leadership.
His basic function is to coordinate the activities of the
individuals who are accountable directly to him. His activi-
ties in the instructional program are somewhat obscured by
the heirarcial arrangement of personnel over classroom teachers.

Further, the multiple supervision of the classroom teacher,

 

-326-
by the subject coordinators, the assistant principal for
instruction, and the principal, makes it difficult to identify
to whom the classroom teacher is accountable for the effec-
tiveness, or lack thereof, of the instructional program.
The principal has assigned to his assistants the authority
and responsibility for all the functions, designed by their
job descriptions previously indicated in the Flatville school,
with the following exceptions.

The assistant principal for instruction, while he
reports directly to the principal, has charge of the in-
structional program, under.the direction of the principal.
Further, he is responsible for evaluating the teachers
effectiveness and shares in their recommendations for pro-
motion and retention with the subject coordinators. He has
line authority over the teachers, though he works through
the subject area coordinators. He also conducts studies
and research in the area of instruction and curriculum im-
provement: but the studies are usually only studies of how
well pupils are acquiring fundamental skills in the subject
matter areas. He does not have the responsibility fOr direct;
ing and coordinating the health program, the instructional
materials center, nor the guidance program. His basic re-
sponbiility is to administer the instructional program with
the subject area coordinators.

The assistant principal for business has the same

basic position that was described in Flatville, except that

 

-327-
he does not have the responsibility nor line authority over
the coordinator of pupil activities.

The job descriptions for the coordinator of instruc-
tional materials and the coordinator of student activities
are identical with those described in Flatville. They ad-
ministratively are now accountable to the building principal.

'Lineville has an administrative and an instructional
council. The composition of the administrative council in-
cludes the principal, the two assistant principals, the
subject area coordinators, the head counselor, and the three
teacher representatives, one from each grade level of the
school. The purpose and activities of these two councils
are identical with those constructed for the Flatville
school.

The emphasis of the instructional improvement pro-
gram at Lineville is on the subject matter fields through
their vertical organization by departments. While the in-
structional staff is concerned with meeting the needs of
pupils and the community it serves, it is conceived that
this can best be accomplished through the departmental or-
ganization of subject matter fields. All improvements or
the need for changes in the instructional program must be
cleared through the "channelS'of the department heirarchy.
Teachers are not permitted to deviate from.the uniform.
policies pertaining to their instructional fields without

permission of the subject matter coordinator who discusses

 

-323-

proposed change with the assistant principal fOr instruction
and who needs the approval of the principal to make the
change. The uniformity of instructional methods and pro-
cedures is perhaps exemplified best by the fact that end

of semester examinations for pupils are prepared by one
member of the department after having possible questions
submitted by all the teachers in the department. Before

the examination is approved by the subject area coordinators
it is discussed with the assistant principal fOr instruction
who gives his approval after some changes.

To summarize the important differences in the or-
ganizational pattern between the Flatville and Lineville
schools, the Lineville schools have the following character-
istics:

a. The administrative structure is more favorably
patterned toward autocratic than democratic behavior.

b. The building principal is the educational leader
in name only, for he has assigned this responsibility to
Others.

c. The administrative organization for instructional
improvement has a number of authority levels or line officers
that must participate in any changes made in the instructional
program.

d. NO single administrator can be said to be in
direct charge of the education of pupils.

 

-329-

e. The vertical structuring of the instructional
program compartmentalizes learning by discrete subject
matter areas.

f. The departmentalization makes it awkward, if not
virtually impossible, to approach learning problems by an
inter-department approach.

g. The administrative organization tends to impede
the most effective use of specialized services to assist in
the teaching-learning process.

h. The arrangement of administrative personnel in
a rather confined line authority relationship limits and
narrows their sphere of responsibility.

1. Coordination, communication, and cooperation is
more difficult to achieve due to the increased number and
layers of administrative personnel.

j. The creative ability of classroom teachers is
stifled by the schools channels of authority over her.

k. Communication within the organization is almost
solely Ohe way-~from the top down.

1. The rigid organizational lines in the instructional
program inhibit the flexibility needed to meet true pupil
needs. . ‘

m. The administrative organization tends to insist
on uniformity of action by teachers, and to focus on mechanical
efficiency rather than on serving the teacher and pupil

needs.

 

-330-

n. The administrative organization demands more
uniformity Of behavior of pupils and teachers rather than
encouraging them to be different.

The construction of the administrative organization
and staffing pattern for the Lineville junior high school
demonstrates that schools can and are organized and staffed
in different ways. This school will accomplish most of the
Objectives for which it was created, though the principal
would most likely state that all its purposes would be ful-
filled. It seems unlikely that democratic values in pupils
will be strengthened or developed when their school environ-
ment is most autocratic in the structure within which teach-
ing and learning is to take place. Surely the creative,
inventive, imaginative, and democratic teacher could not
endure-for long in this administrative organization, which
is geared to demanding uniformity of teaching and learning
concepts.

Many of our junior high schools and other secondary
schools are structured as is the Lineville school illustrated
here. Perhaps this is largely caused by the principal and
board of education conceiving the role of the principal
to be more nearly patterned as that of institutional manager
rather than the role of the instructional leader. It may
also be due in part to the inadequacy of the administrative
staff in many schools that forces this pattern upon the

school. Whatever the reasons, the pupils, teachers, and

 

-331-
community would all benefit from a reorganization of the
school's administrative structure to more fully reflect the

basic values of our democratic society.

Schoal-within-a-Sghool Orgaaization

The basic concept of the schooldwithin-a-school
organization for a junior high school of 750 to 900 pupils
has, up to the present time, has not been a plan Of organization
used by a large number of school systems. This, in part,
may be accounted for by the fact that in many communities,
when additional secondary school facilities are needed, a
new senior high school is usually constructed and the junior
high school is housed in the old high school building. Mbst
of the existing high school buildings are most difficult,
if not impossible, to adapt to the true, school-within-a-
school concept. Consequently, when the junior high school
"moves in," its organizational pattern, in part, is re-
stricted by its physical facilities. Mbst of the more effec-
tive junior high schools organized on this concept have had
a new building constructed that was planned to house this
organizational pattern.

The basic purpose of the school-within-a-school con-
cept is an attempt to personalize the instructional program.
Those who have taught or served as administrators in a school
with 300 or fewer pupils appreciate the personal intimacy
that exists in this size school setting. The close contact

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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-333-
among pupils, between pupils and teachers, between teachers
and administrators, together with the scheduling and planning
flexibility is a distinct characteristic of the small school.
This school-within-a-school concept is designed to afford
these advantages:

a. To provide the close interpersonal relations
between pupils and staff that is conducive to quality in-
struct ional programs.

b. To provide organizational flexibility to meet
individual pupil needs.

c. To provide the advantages of the large school
specialized and auxilliary services to teachers and pupils,
in a small school organization.

d. To provide for easier transition from the self-
contained classroom of the elementary school to the highly
specialized secondary school, one of the basic purposes of
the junior high school.

The organizational chart was constructed to illus-
trate this kind of organizational pattern which divided the
school into three wings of the building, each with 250 to 300
pupils. This division may be made in at least two different
ways. This particular organization chart shows each grade
level housed in a separate wing of the building. An alterna-
tive method would be to house all pupils of a single grade
separately in the three wings of the building. .

 

-33h-

The administrative organization has, in addition to
the principal, three full-time assistant principals and a
coordinator of instructional materials. This administrative
staffing pattern will have a pupil-administrator_ratio of
180 : one and should be considered to be well staffed ad-
ministratively. In addition, the school would have a part-
time psychologist, a nurse, reading consultant, part-time
dental hygienist, and speech correctionist. A guidance
counselor would be assigned to each wing to work with the
assistant principal and teachers.

It is Observed from the organizational chart that
each wing of the building has an assistant principal who is
in charge of that wing of the building. In this arrange-
ment, the assistant principal is in line authority over the
classroom teachers in his wing. The assistant principal in
this wing assumes all the functions Of the assistant prin-
cipal for instruction and the coordinator of pupils activities
in the Flatville organizational pattern as well as many of
the functions of a building principal. In fact, the aesistant
principal is, in effect, the principal of that wing.

, The separate wings of the building operate adminis-
tratively as though they were autonomous and separate build-
ing units. Each unit is a self-contained facility, with the
exception of the specialized facilities of the instructional
materials center, the school cafeteria, the auditorium, and

other like common areas which it is not necessary or

 

-335-
economically feasible to duplicate in each wing. Since the
person in charge of each wing is, in effect, the principal
of that unit, he must have all the authority and responsi-
bility of a building principal. He is the only administrative
person in that wing, so he must assume the responsibilities
of administering the unit.

The schooldwithin-a-school organization has a school
administrative and instructional council. The purpose of-
these councils is identical to those previously described
for Flatville and Lineville schools. The administrative
council is composed of the principal, the three assistant
principals, and a teacher representative from each wing.

The instructional council is composed of the principal, the
three assistant principals, the counselors, the psychologist,
the coordinator Of instructional materials, and a teacher
representative from each wing of the building.

With this administrative organization pattern, the
role of the building principal is quite different from that
of the other schools previously described. The differences
may be summarized as fellows:

a. Since there is no assistant principal for busi-
ness, these responsibilities must be assumed by the building
principal. _

b. The responsibility for the improvement of in-
struction is assigned to the assistant principal for each
wing.

-336-

c. The principal assumes the responsibility for the
coordination of the three wings and gives only general over-
all leadership in the area of instructional improvement.

In this area he is the expert consultant to the assistant
principals.

d. The principal has a predominance of managerial
and coordinative responsibilities.

The unique characteristics of this type of organi-
zational pattern might be identified as follows:

a. Close interpersonal relations of pupils and staff.

b. A curriculum organization that is flexible and
adaptable to meet individual pupil needs.

c. The classroom teachers are responsible fOr the
instructional program in his unit and can utilize the
specialized services provided fer the teachers and pupils
with a minimum of heirarchial channels to follow.

, d. The creative ability of the staff is utilized to
meet the needs of pupils and the school.

e. In the small administrative units pupils and
teachers are recognized as individuals and their individual
needs are more nearly recognized and provided for.

f. It provides a more ideal setting for the transition
of the pupil from the self-contained elementary classroom
to the specialized program of the senior high school.

Summary:

These three patterns of organization and staffing

 

-337-
should demonstrate that a school can be administratively
structured in a variety of ways. It is possible, by combin-
ing basic concepts of organization in a number of ways, to
construct many different kinds of organizational patterns.
Those interested in designing administrative organizations
for the junior high school will be able from these three
basic patterns to make many other variations.

The seminar participants did not agree upon a single
pattern of administrative Organization to perform the func-
tions to fulfill the purposes of the school. The majority
of individuals preferred the flat organization and felt
that in relationship to generally accepted concepts Of edu-
cational administration and Observations of school systems,
whose administrative organization had been judged to be
most effective, this plan of organization is more acceptable
than a pyramidal plan. However, it was recognized that no
single plan should fit every school system for different
philosophies of education and administration differences in
community tradition and backgrounds, difference in the ad-
ministrative staff and communites' resistance to change,
and difference in the status of the schools departmental
organization all combine to militate against the universal
acceptance of one administrative structure. It would seem
unwise to contend that a single emperical organization and
staff pattern could be developed without considering the
type of community in which it would operate and the individuals

Ju-v

 

-338-

who would be responsible for its Operation. An autocratic
principal and weak associate administrators would render

worthless any paper design of the flat administrative or-
ganization.

CHAPTER X

SUMMARY OF FINDINGS, CONCLUSIONS, RECOMMENDATIONS,
AND AREAS FOR FURTHER STUDY

‘ The problem as stated in Chapter I was to "assist
school administrators in New York State with the problem
of organizing and administrative staffing of the junior high
school.” It was pointed out that a review of the literature
of education revealed that little consideration had been I
given to the internal organization of the junior high school.
It was contended that, to improve the instructional program
fOr pupils, an adequate administrative organization and
staffing pattern that provided needed services to teachers
and pupils was of paramount importance.

It was hypothesized that to determine the adminis-
trative organization and staff needed to improve instruction,
five questions should be answered. These were:

1. What are the operational purposes Of the juniOr

high school?

2. What are the administrative and supervisory
functions needed at the junior high school level
to carry out these purposes?

3. What administrative and supervisory positions
should be established to perform these functions?

~339-

 

-31“)-

A. What is the job description Of the individuals

5.

who are to administer the junior high school?
What patterns of administrative organization will
relate these positions to one another in such a
way that the needed functions will be performed
and the stated purposes will be performed?

In this the final chapter, it is proposed to sum-

marize briefly the decisions reached by the seminar partici-

pants, as well as the results of the questionnaire completed

by principals as they relate to the administrative organi-

zation and staffing patterns Of the junior high school.

PROCEDURE AND METHODOLOGY

Three basic research procedures were employed in

gathering data on which this study is based. These were:

1.

2.

3.

An intensive review of the post 1900 literature
in selected areas on all pertinent writings on
the junior high school was undertaken.

A series of seminar discussions, under the direc-
tion of six institutions of higher learning in
New'York State, were conducted.

A questionnaire was constructed and sent to all
registered junior high schools in New York State,
exclusive of New'York City.

The advisory committee of the Council for Adminis-

trative Leadership, who sponsored this study, determined that

 

-3hl-
the seminar discussion groups had adequately served the

purposes of the study. Further, the responding schools to
the questionnaire represented a fair exploratory sampling
to determine existing administrative staffing and by whom
administrative functions were being performed.

SUMMARY OF FENDINGS

From the earlier chapters, this summary of results
of the discussions of the seminar groups and results of the

questionnaire as answered by the principals is presented.

Purposes of the junior high school
During the half century of the junior high school's

existence many statements of purposes have been developed;
however, these statements contain the same basic ideas. The
more recently developed statements reflect the results of
research of disciplines related to education which has re-
sulted in statements becOming more specific to particularize
the needs, concerns, and problems of the age group pupils
fOund in the separate administrative units of the school
system. ,
The purposes stated by the seminar groups appear to
meet the needs of pupils and society. As stated, the purposes
represent a consensus Of opinion of professional educators -
of New York State, and not purposes serving a specific group
-Of pupils in a given community. These purposes appear to be

 

9 ~3h2-
applicable to all levels of the school system, with the
exception of the following purposes which might be considered
to be particular needs of the specific age pupil the school
serves: .

1. To help students develop in a physical environ-
ment suitable for the educational needs of child-
ren of junior high school age.

2. To help those students who will terminate their
formal education at the junior high school level.

3. To help students make the transition from the
elementary school to the senior high school through '
appropriate activities, courses, and teaching

methods.

Present status of administrative organization and staffing
pattarns

From the questionnaire submitted to the junior high
‘school principals the following tabulation of data indicates
the salient information from those questionnaires:
Administrative positions
Seven different titled administrative positions
existed among the various schools, with 7k per
cent of the administrators on a full-time basis.
The median ratio of pupils to administrators

was 529 : one.

-3h3-

Guidance services
Four different kinds of guidance services were
available among the various schools, with the
position of guidance counselor the most pre-
dominate one, existing in all but one school.
The median ratio of counselors to pupils was
ASO : 1.

Health services
All schools had the services of a school nurse
and school physician. The median ratio of
pupils to nurses was 1055 : 1. Approximately
50 per cent of the schools have a dental
hygienist, with a median ratio of dental hygienist
to pupils of one to 2500.

Department Chairman
This pantion existed in 55 per cent of the
schools, with 37.5 per cent of the schools grant-
ing released time to this personnel. The median
pupil-department chairman ratio was llhO : 1.
Nearly all schools exceeding 800 pupils were
organized with department chairmen. More schools
had a department chairman in physical education
than any other area. Mbst schools with depart-
ment chairman have six chairman in the areas
of English, mathematics, social science, science,

foreign languages, and physical education.

 

-3hh-

Instructional materials
Two positions existed in this area, librarians
and audio-visual chairman. most schools have
one librarian regardless of their size, and the
median ratio of librarians to pupils is l : 750.
Nearly 50 per cent of the schools have a audio-
visual person, on a part-time basis. The median
ratio of this position to pupils was one to
3,600.

Remedial instruction
Slightly more than 50 per cent of the schools
had remedial reading personnel, predominately
on a full time basis. The median ratio of
this position to pupils was 1 : lhOO. Speech
correctionists served on a part-time basis in
no per cent of the schools, with a median ratio
to pupils of one to 5,000.

Services from the district office
Nearly 90 per cent of the schools had some type
of professional services from the district
office. A total of 25 different services were
provided to the schools, with instrumental music

personnel most frequently provided.

Administrative organization

The predominate pattern of administrative organization

 

~3h5-
appeared to be that of a strict line authority concept, with

echelons of adminstrative personnel over classroom teachers.
{This was particularly true of all schools exceeding 800

pupils. This organizational pattern is suggested in the
majority. of schools by administrative personnel being vertically
iorganized in a pyramidal fashion. One school of 2200 pupils
Jhad.13 different chairman representing l2 different instruc-
‘tional areas, all with some released time to administer those
activities. One school of 1300 pupils had the equivalent of
five and one-half full time staff, representing 11 different
individuals serving as department chairman.

The gdmipistrative and ggpgrvisogz functions needed to carry
22£_£_2_§£_22_l§_22222§2§

The seminar groups classified L3 administrative and
supervisory functions under five headings, which appear
broad enough to encompass all functions of administration.
These administrative activities do not appear to be unique
functionsapplicable only to the junior high school, and
with few exceptions they appear to be necessary to all levels
of public school administration. The following administra-
tive activities, from an experience point of view, would
require more administrative time to complete in the secondary
schools:

1. Directing and coordinating the guidance program

2. Directing and supervising the pupil activity pro-
gram

-346-

3. Directing the program for exceptional children

A. Accounting for pupils

5. Scheduling of pupils

6. Maintaining pupil personnel records

7. Scheduling of personnel

The seminar groups appear to have identified what
might be considered a list of ”primary" or the "most im-
portant" functions that the administrative organization
would need to perform to fulfill the internal, rather-than
the external, objectives of the school. 0r stated another
way, the seminar groups appear to have identified administra-
tive activities needed to keep the school in operation,
rather than to have identified specific administrative and
supervisory functions necessary to accomplish the goals of

the junior high school.

The perfbrmance of administrativg and supervisogz functions

Principals indicated on a questionnaire how these
#3 administrative functions were handled in that building.
These functions were handled in the schools as follows:
Improving educational opportunity
Handled by the principal alone 32 per cent of the

instances

Assigned to others 18 per cent of the
‘ instances

Shared with others 50 per cent of the

instances

 

~3h7-

Principals are directly participating in 82 per
cent of the activities in this area.
WOrking with pupils
Handled by the principal alone 32 per cent of the in-

stances

Assigned to others 33 per cent of the in-
stances

Shared with others 35 per cent of the in-
stances

' In 65 per cent of the schools the principal is work-
ing with pupils.
Obtaining and developing personnel
Handled by the principal alone 66 per cent of the in-

stances

Assigned to others 9 per cent of the in-
stances

Shared with others 25 per cent of the in-
stances

Thus,in 91 per cent of the cases the principal
participates in this activity.
Maintaining effective interrelationships with the community
Handled by the principal alone A6 per cent of the in-

stances

Assigned to others 6 per cent of the in-
stances

Shared with others h8 per cent of the in-
stances

In this area, the principal participates in this
function in 91. per cent of the cases.

 

 

-348-
Providing funds and facilities
Handled by the principal alone #5 per cent of the in-

stances

Assigned to others 25 per cent of the in-
stances

Shared with others 30 per cent of the in-
stances

In 75 per cent of all activities in this area the
principal is participating.

0f the #3 functions, principals in 82 per cent of
the instances are directly involving themselves. He handles
these functions alone in 45 per cent of the cases, and in 37
per cent of the cases he is participating by sharing the
function with others. One distinct feature emerges from
this pattern of handling these functions. Almost regardless
of the function being described, the size of the school,
or the adequacy of the staff, functions are not being assigned

to others.

Guidelines for administrative staffing and organization

Organization is considered a vehicle to facilitate
the attainment of specific goals. School administrators
have attempted to adopt for the schools organizational
patterns, models of other successful organizations, only
to discover that each organization has a unique mission to
perform and the organization structure needed for schools
must serve the unique needs of education. Education must

be concerned with an organization structure to serve the

 

~3h9-

democratic ideal, developed by and for those affected by it,
rather than impose the structure of an organization on edu-
cational institutions whose values may be different from
education. Schools must be organized to promote learning
and its organizational structure must facilitate the learn-
ing process.

Administration is the process whereby the goals of
the individual and the institution are fulfilled. The ad-
ministrative structure is designed to coordinate and facili-
tate the accomplishment of objectives. To fulfill objectives,
planning, organizing, staffing, directing, controlling, and
evaluating are interrelated, simultaneously, occurring pro-
cesses that should be performed by.the individuals in the
school organization.

The purposes of the school can be achieved only by
the coordinated effort of the total staff. Effective coordi-
nation of individuals can only be attained by face to face,
interpersonal relations to accomplish individual as well as
institutional goals. Coordination must be secured within
the value system of the democratic tradition. This requires,
however, a clear cut definition and understanding of the
roles and functions of members of the organization whereby

authority and responsibility are mutually shared and willingly
overtly accepted by the group.

 

-3 50..

The administrative and su ervisor sitions needed to erform
functions

The positions needed at the junior high school identi-
fied by the seminar participants to cover the AB adminis-
trative functions, without involving the principal in in-
apprOpriate activities and permit him to spend the majority
of his time in improving the instructional program, seem to
be necessary to meet the needs of pupils and teachers.

To adequately fulfill the needs of the pupils and
teachers of the school an administrator-pupil ratio of
approximately 200 : l is needed. The current existing median
ratio of administrators to pupils is approximately one to
530. This would indicate a need to at least double the

administrative personnel in the schools.

WW
Administrative positions in the junior high school
are designed to improve the instructional program by facili-
tating the teaching-learning process. The basic responsi-
bility of the principal is to coordinate the efforts of the
total staff to improve teaching and learning. The instruc-
tional program of the school, in most instances, is a re-
flection of the activities of the principal. The improvement
of instruction has not occurred to a large extent because of

the lack of job descriptions of individuals in the organi-

zation.

 

-3 51...

The patterns of administrative organization that relatgg
a in strative pos tions to u i t g purpgses o tgg
junior ig so 00

A The seminar groups suggested three structural

 

patterns of organization that would relate the administra-
tive positions to fulfill the purposes of the junior high
school. Each of the three patterns of organization repre-
sent different concepts of administrative organization and
functioning of personnel. To construct these organizational
patterns the data previously presented on purposes of the
school, concepts of organization, job descriptions, functions
to be performed, and suggested personnel was utilized. For
each pattern of organization, an organizational chart was
developed to indicate positions, relationship of positions,
areas of supervision, and their relationship to classroom
teachers. The important characteristics of each pattern of

organization are:

Elatville §chool
l. The principal has the role of the instructional

leader.

2. The school has a curriculum organization pattern
designed in the democratic tradition.

3. The classroom teacher is recognized as the in-
structional expert.

A. Administrative responsibilities are diffused

among several persons in the organization.

5.

6.

7.

-352-
Specialists become the service arms of the

classroom teacher, not line officers.

Reducing the levels of the organization structure
broadens the creative potential of individuals.
The organization engenders cooperation not

domination.

Lineville School

1.

2.

3.

L.

5.

6.

7.

No single administrator can be said to be in
direct charge of the education of a child.

The creativity ability of the teacher is stifled
by the channels of authority over her.
Communication is very difficult and usually

one way-~from the top down.

The organization reduces the possibility of staff
participation in decision making and is autocratic
in theory, if not in practice.

Although more administrative personnel exist in
the school, administrative responsibility is
centered in the hands of few individuals.

The organization encourages very close control
of personnel.

The rigid organization line inhibits flexibility

needed to meet pupil and community needs.

School-within-a-school

1.

The organization fosters close interpersonal

relations of pupils and staff.

-353-

2. The flexible organization pattern is adaptable
to meet individual pupil needs.

3. There are more opportunities for creativity in
the smaller units with their minimum of organi-
zation structure.

A. The small administrative units tend to provide
more individual attention to pupils than is possible
in the larger school.

5. The organization is ideal for transition of
pupils from the elementary to the senior high

school.

CONCLUSIONS

The important conclusions from this study are:

l. The statement of purposes developed by the seminar
group is, in the main, applicable to all levels of education '
and common to all schools. Such differences in purposes that
do exist from one level to another in the schools must arise
from a combination of two factors: (1) the nature of the
learner and his developmental characteristics, and (2) the
impact of his society on the learner. The junior high school
years are ones of exploration, rapid social and sexual changes,
and wide variation in student maturity-~truly a transitory
stage in the individual's development from child to adult

behavior.

 

-35h-

2. The staffing questionnaire indicated that most
schools are inadequately staffed with administrative or
service personnel to accomplish the purposes of the school
or to meet the needs of pupils and teachers. Additional
personnel is needed in most schools in the areas of adminis-
tration, guidance, psychological services, school librarians,
instructional material consultants, remedial reading and
speech correction.

3. The administrative and supervisory functions
needed to carry out the purposes of the school as identified
by the seminar groups will not ensure that the purposes of
the school will be accomplished. The groups appear to have
identified administrative functions more necessary to keep
the school in operation than to fulfill external goals.

A. The seminar groups in determining the administra-
tive functions omitted including administrative activities
that would provide for the important processes of planning
and evaluation of either goals or the outcomes of the school's
program. Planning and evaluating are complementary processes
and should occur simultaneously in the school. Evaluation
is the determination of the value of planning and the
effectiveness in utilizing the administrative process.

5. When principals were asked how the 43 administrative
functions were being handled--by themselves, assigned to
others, or shared by others on the staff--one distinct

feature emerged for handling administrative functions.

 

 

~355-

Almost regardless of the function being discussed, the size
of the school, or the adequacy of the staff, functions are
not being assigned to other staff members. Sharing respon-
sibility and assigning responsibility are quite different
matters, and it appears that most principals are not confi-
dent enough of themselves or their staffs to give up control
over even insignificant matters which could be routinized.

6. The administrative and supervisory positions
recommended by the seminar groups, as well as the positions
recommended to provide needed services to teachers and pupils,
were in keeping with the recommendations of educational
authorities. This recommended staff should be adequate to
fulfill the purposes of the schools, provided the adminis-
trative structure has an orientation toward the democratic
tradition.

7. Data from the questionnaire indicates that some
schools have administrative positions on the staff whose
contributions toward the improvement of instruction, or
meeting the needs of pupils or teachers, might be challenged.
The administrative functions identified by the seminar
groups do not indicate a justification for the position to
keep the school in operation. Nor can the current literature
in education be used to document the need for these positions.
From an experience point of view, it appears that teachers',
pupils', and the community's needs would be better served

by substituting for these positions other more vital to the

-356-
instructional program of the school. This has specific
reference to such half-time and full time positions of
department chairman for a single subject area, full time
dental hygienist in small schools, full time nurses in
schools with less than 500 pupils, and other positions re-
vealed from data on staffing patterns on the questionnaire.

f 8. Schools had full or part-time personnel serving
as department chairman performing administrative activities
that, should these positions not exist in the schools, would
have to be performed by administrative personnel. It would
seem logical, then, that department chairman should be con-
sidered a part of the administrative staff and their positions
included in the pupil-administrator ratios. Should this
procedure be followed, some schools would appear to be over-8
staffed with administrative personnel.

9. The majority of the schools are administratively
organized with department chairman being granted released
time in varying patterns among the different schools. This
would suggest that most schools are organized onaipyramidal
concept of organization with layers of personnel over class-
room teachers. This would tend to indicate that the school's
administrative structure encourages people to dominate others
more than it encourages cooperation with others.

10. The guidelines that were developed to be con-
sidered when organizing and staffing of a junior high school

appear to represent concepts of organization and staffing

 

~357-
adaptable to an educational institution consistent with the
value system of a democratic society. A school organized
and staffed on these principles should fulfill the needs
of pupils and society and attain the goals of the insti-
tution. An organization structured on these basic principles
should release the creative ability of the staff’and provide
the organizational flexibility needed to free the principal
to concentrate his efforts on the instructional program.

11. It appears quite clear that most schools have
not adequately determined the administrative and supervisory
functions needed to fulfill the purposes of the school.
Further, these necessary functions have not been analyzed to
construct job descriptions for individuals making up the
administrative organization. Without job descriptions,
authority and responsibility for the job to be done cannot
be determined. The lack of job descriptiors would tend to
render the organization both ineffective and inefficient.

12. The pattern of administrative organization and
staffing and the relationship of administrative positions
to fulfill the purposes of the school do influence the
effectiveness of the school. The apparent variable which
affects the proper functioning of an administrative organi-
zation is the people involved. If a good staff is able to
work reasonably well in a seemingly awkward structure, it
would do an even better job after organizational improvements

have been made. If a seemingly sound administrative structure

-358-
is not functioning properly because of the staff members
involved, a less adequate organization would further hamper
the situation. A flat administrative organization for the
schools is preferred and is in keeping with the democratic

tradition.
RECOMMENDATIONS

1. To provide the pupils and teachers with the
specialized services to adequately meet the needs of pupils '
and society, the community should provide the school with
adequate administrative, guidance, health, remedial instruc-
tion personnel and instructional material to fulfill the
purposes of the school.

2. The roles and functions of the school's specialized
resource personnel should be defined cooperatively by the
staff and the roles and functions these individuals are to
perform should be understood by all staff members.

3. The major function of the building principal
should be that of providing instructional leadership to the
staff.

A. The organization structure should provide for the
development of procedures to carry policy agreements into
action.

5. The organization structure should be modified
when ever there is a need to facilitate the teaching-learning

process.

 

-359-

6. The organizational climate of the school should
be one that is conducive to creativeness, experimentation,
and expression of individual initiative, skill, and talent.

7. The organization structure should be so designed
to enhance the interaction of individuals to display such
characteristics as initiative, originality, empathy, coopera-
tion, understanding, cohesiveness, productivity, and esprit
de corps.

8. The administrative organization should be so
structured that continuous and cooperative evaluation of
all phases of the organization is achieved.

9. The administrative organization should be under
unit control.

10. The administrative structure should be so designed
and staffed with adequate personnel that the building prin-
cipal can function as the educational leader of that school.

11. The administrative functions should contribute
to the improvement of the educational program for its pupils.

12. The principal of the school, cooperatively work-
ing with the staff, should develop the policies that effect
the operation of the school for adoption by the board of
education.

13. The administrative staff should be organized on
the basis of work assignments or job descriptions rather
than on the basis of individuals. It is both ineffective
and inefficient to employ broadly qualified individuals who

 

-3 60..

presumably will work out their administrative activities
to fit their competencies and interests without regard to
'whether they add up to a well designed administrative team.
1L. The administrative structure should be designed
to emphasize wide sharing of authority and responsibility
for planning, controlling, directing, evaluating, decision-
making and policy development and only such centralized
authority as is necessary to coordinate the total organi-
zation.

15. The administrative organization should provide
for continuous, face-to-face relationships and free two-way
communication between all members of the total staff.

16. The role of the building principal should, in
the main, be one of leadership, stimulation, coordination,
service, and appraisal, rather than one of inspection and
command.

1?. The administrative staff should be so organized
as to permit the various individuals on the staff to have
as much freedom for individual initiative and creativity as
is consistent with effective operation and policy statements.

18. The instructional program of the school should
be geared specifically to the problems, needs, concerns, and
interest of the pupils it serves and to meet the impacts of
society on their lives.

'19. Since the public school belongs to the people,
continuous opportunities should be provided for the interaction

-361-
between parents and the school and the parents and teachers.

20. The administrative organization should be so
designed that provisions are made for every individual and
group to be affected by a program or policy to share in the
formulation and decisions with respect to that program or
policy.

21. Although no one model administrative organization
can probably serve all schools equally well, a flat adminis-
trative organization is more in keeping with the democratic
tradition and should be preferred to a pyramidal pattern
of organization that is at least autocratic in theory if
not in operation.

22. Strict chains of command and multiplicity of
control devices should be avoided.

23. The administrative and supervisory functions
and activities necessary for the instructional program to
fulfill the objectives of the schtolshould be cooperatively
identified by the total staff.

2A. In a democratically administered school, the
situation and not the individual's position or status in
the organization should determine the right and privilege
to exercise authority.

25. Every person in the organization should know to
whom and for what he is administratively accountable in

the organization.

 

-362-

26. No individual in the organization should be
administratively accountable to more than one person.

27. The necessary authority to accomplish a task
should be granted at the time the responsibility for the
task is assigned.

28. Every individual in the organization should
participate in the planning of activities and programs or
determining the goals to be attained affecting his area of
authority.

29. Planning is a continuous process in all organi-
zations and the school's administrative structure should
make provisions that this function by both individuals
and the entire organization is being carried on.

30. The principal with the instructional staff
should develop an evaluation program to determine the
degree to which the school is fulfilling its purposes as
well as affecting behaviorial changes in pupils acquiring
fundamental skills, together with changes in attitudes,
habits, behavior, and appreciations.

31. The effective school program should evaluate
Progress in terms of the pupil's own capacities, rather
than on a pass-fail criterion.

32. The evaluation program should develop specific
techniques and procedures that will identify and provide
evidence that pupils are developing and growing toward the

outcomes desired by the instructional program.

 

ill! IIIII ‘.'f\l! .

Allan-call... g!!! ‘ Ill

 

 

~363-

SUGGESTIONS FOR FURTHER INQUIRY

1. There is considerable evidence that building

principals, in most schools, regardless of size, or the
adequacy of the administrative staff, are personally partici-
pating in a majority of the administrative and supervisory
functions of the school. It appears that a study should be
undertaken to determine what factors or conditions prompt
these principals to feel that they must be involved in per-
forming these activities and to determine the conditions or
factors which would influence principals to assign the ad-
ministration of activities to associate administrators or
others on the staff.

2. There is evidence that most schools do not have
organizational charts describing formal organization re-
lationships or job descriptions for their administrative
and supervisory personnel. It might prove fruitful to
determine if there is a relationship between the existence
or lack thereof, of organizational charts and job descrip-~
tions of administrative personnel in the schools and the
principal performing alone or sharing in the majority of
administrative activities or assigning activities to asso-
ciate administrators or staff members.

3. There seems to be general agreement in most state-
ments of purposes of objectives of the junior high school

as to the needs of pupils and the society it serves; however,

-364-

the literature in education seems to have omitted identify-
ing specific administrative and supervisory activities that
should be undertaken to fulfill these objectives or by

whom these activities should be performed. It would appear
necessary to improve the instructional program to attempt to
determine what these administrative and supervisory activities
should be, by whom they should be performed, and if teachers,
administrators, and the boards of education have different
conceptions of the activities that should be undertaken and
by whom they should be performed.

A. It is assumed in educational circles and advo-
cated by educational authorities that the principal of the
school should be its instructional leader. In schools or-
ganized with echelons of administrators over classroom
teachers,~the building principal is unlikely to serve as
the instructional leader of the school. It might be quite
revealing to evaluate the results of an instructional program
and to determine the extent to which the needs of the pupils
and society can be met and the purposes of the school ful-
filled when an associate administrator assumes the role of
the instructional leader within a democratic framework of
a flat administrative organization retaining organizational
flexibility and releasing the creative ability of its staff.

5. Our modern society, according to most authorities,
is rapidly becoming urbanized as well as industrialized. The
concentration of population along with the continuing population

 

-365-
increase will require additional school facilities in many
communities to house this increasing student population.
The literature of education contains various statements, most
of which appear to be unqualified, as to the optimum number
of pupils one organizational unit should accommodate. To
develop an adequate administrative organization tqully
utilize the maximum talents and resources of individuals and
at the same time provide the instructional program to ade-
quately meet the needs of pupils and society, there needs
to be determined the ways and to what extent the size of
the administrative unit affects or influences the teaching-
learning process. The teaching-learning process to be con-
cerned with the acquisition of basic skills, as well as the
formation of values, attitudes, ideals, aspirations, and
behavior.

6. There is some evidence that as groups strive
toward the development of mutually held goals, understand-
ings, and values, there is a tendency to create a degree
of conformity in the individual as well as the group. There
is a need in the organization for the ingenuity, initiative,
and creativity of individuals to further the pupils' in-
structional program. This apparent conflict between the
need for a degree of conformity as well as creativity would
SUggest there should be further study of the group process

to determine the ways to maintain the degree of organization

 

-3 66-
conformity necessary for the coordination of effort, without

affecting the initiative or creativity of individuals.

 

BIBLIOGRAPHY

A . BOOKS

Barnard, Chester I. The Functions of the Executive. Cam-
bridge, Mass.: Harvard University Press, 1938.

Bent, Rudyard Ks,and McCann, Lloyd E. Administration of
Spcondar% Schools.. New York: McGraw HiII 560E Co.,
“Ce, 0

Briggs, Thomas H. The Junior Hig% School. Boston, Hass.:
Houghton Mifflin COe, 192 e

Bunker, Frank F. ‘The Junior High School--Its Beginningg.
washington, . C.: W. F. 0 arts Co., 935.

Conant, James Bryant. Education in the Junior Higp School
Years. Princeton, N. .: E ucation. est ng Service,

Corbally, John E., et al. Educational Administration: The
Secondagf SEhooI. Boston, 3533.: IIIyn and Bacon
0., O

Cutts, Norman C. (ed.). A Re rt of the Tha er Conference
on the Funct on aIiIications and Trainin of School
8 c o o sts. washington, . .: er can eye 0-
IogIcaI Association, Inc., 1955.

Dale, Ernest. Planning and Developing the Compgnz Organiza-
tion Structure. ew or : er can anagement

Association, 1952.

Davis, Carrier Ralph. The Fundamentals of Mana ement. New
York: Harper and Brothers, I95I.

Dimmock, Marshall E. The Executive in Action. New York:
Harper and Brot ers, .

Drake, William E. The American High School inTransitio%.
Englewood C s, N. .: rent ce a nc., 5.

-367-

 

 

-368-

Edmonson, J. B., et al. The Administration of the Modern

Se ondar S hool. New Yorh: The MEEMIIIan Co.,
I9AB.

Faunce, Ronald C. and Clute, Morrell J. Teaching and Learn-
ing in the Junior High School. San rancisco:
wa swort

3 ing 0., 1 61.

Fayol, Henri. General and Industria; Managempnt. New York:
Pitman b is ing Corporation, A .

Follett, Mary Parker. thamic Adminigtration. New York:
Harper and Brothers, A . .

Frazier, George William. An I troduction to the Stud of

. Education. New York: Harper ana Brothers, I956.

French, William Marshall. American Seconda Education.
New York: The Odyssey Frees, I957. .

Griffiths, Danield E., et a1. OrgapizinE Schools for Effec-
tiv Action. DanviIle, 1 .: e nterstate ess,
I952. , .

Cruhn, William.T.,and Douglas, Harl R. The Modern J ior
High School. New York: The RonaId Brass Co., I956.

Gulick, Luther,and Urwick, L. Papers on the Science of Ad-
ministration. New York: nstitute of ic -
ministration, 1957.

Hagman, Harlan L., and Schwartz, Alfred. Administration in
Profile for School Executives. New or : arper
an rot ers, 55.

Havinghurst, Robert J. Develo ental Tasks in Education.
New York: Longmans Green and 50., I952.

Jacobsen, Paul B., et al. The Effective School Princi 1.
New York: Brentice HaII Inc., I959.

Johnson, walter F., et a1. Pu 11 Personnel and Guidance
Services. New York: McGraw BiII BooE Co., Inc.,

Koopman, G. Robert, et a1. Democrac in School Administra-
tion. New York: AppIeton-Century Co., I9A3.

Koos, Leonard V. The Junior High School. Boston, Mass.:
Ginn and Company, 7.

~369-

Lepawsky, Albert. Administration. New Yerk: Alfred A.
' Knopf, 19h90

JMiel, Alice. Chan in the Curriculum. New York: Appleton-
Century-Croft Co., I9A6.

Millett, John D. WOrking Concepps of Organization. New
York: Prentice Ha c., A .

Milward, G. E. An A roa h to Mana ement- Cambridge, Mass.:
Harvard UnIversity Brass, I957.

Noar, Gertrude. The Junior Hi h School Toda and Tomo row.
New York: Prentice HaII Inc., I953.

Roeber, Edward 0., et al. 0r anization and Administration
of Guidance Services. New York: HcGraw HiII BooE
Co., I953.

Spears, Harold. Im rovin the Su ervision of Instruction.
New York: Brentice HaIl Inc., I953.

University of the State of New York. A Desi f r Earl
Secopgapy Education. Albany, N. I.: The Bepartment,

A.

Urwick, L. The Elements of Administration. New York:
Harper an rot ers, A .

Wiles, Kimball. Su e vision for B tter Schools. Englewood
Cliffs, N. .: Prent ce a nc., 55.

B. ARTICLES AND PERIODICALS

Abelson, Joseph. "A Study of the Junior High School Pro-
ject," Education, XXXVII (September, 1916), 1-19.

Baughman,'Ms Dale. "Patterns of Staff Personnel in Illinois
Junior High Schools," Bulletin National Association
If Sepondap§ School Princings, XhIII l5eptem5er,

5 a 7‘5 0

Bonus, Kenneth. "Leaders are Made Not Born,“ Childhood
Education, XXIV (January, I9A8), l-A.

Braham, R. V. "What are the Current Trends in the Junior
High School,” Bulletin National Association of

Secondapz SchooI BrinpraIs, IIIII lerII, I939).

~370-

Campbell, Clyde M. "A Democratic Structure to further
Democratic Values,” Pro ressive Education, XXX (Nov-
ember, 1952), 25-29. '

. "The Administrator Treads a Perilous Path Between
School Board and Professional Staff," The Nation's
Schools (March, 1952), A9-50.

Coxe, warren W. "Trends in the Modern Junior High School,"
BhlletinI National Association of Secondaay §chool
ipcipa 5, pr , , 3 - .

Dewey, John. "Current Problems in Secondary Education,"
School Review, X (February, 1902), 13-28.

Douglas, Harl R. "Functions of the Modern Junior High
School," Bulletin, National Association oi Sgcondarz
Principals, Apr , 5 , - .

Fensch, Edwin A. "The First Junior High School " School and
Society, LXXXVIII (August 28, 19A8), 13 ~13 .

Foster, F. K. "Junior High School Principalship," American
School Board Journal, LXXXV (August, 1932), 2I-22.

French, William. ”Role of Today's Junior High School,"
Bulletin National Association of Seconda School
Principals—W Apri , 5 , 5- .

Gruhn, William T. "Purposes of the Junior High School--

After Forty Years," California Journal of Education,
XXVIII (MarCh, 1952), 27- 3 .

 

Heironomous, N. C. "Is this the Earliest Known Junior High
School," Clearin House, XIV (May, 19A0), 518-519.

Hertzler, Silas. "The Junior High School in Connecticut
before 1872," School Review, XXXV (December, 1927),

751-755. .

Howell, Clarence E. "Junior High School--How Valid are its
Original Purposes," Clearin House, XXIII (October,

19A ). 75-78.

Jones, Arthur J. "Appraising the Junior High School,"
Education Di est, IX (May, 19AA), 23-26.

Koos, Leonard R. "Junior High School Reorganization After
Half ggcentury," Schooi Review, LXI (October, 1953),
3 3-3 .

 

-371-

Lauchner, Aaron H. "What Improvements can be made in Or-
ganization, Administration and Supervision in the

Junior High School " Bulletin National Association
of Secondapy School PFIncings, IBII (Octoher, I953),
A - 5 -

"History and Development of the Junior

Lentz, Donald W.
High School " Teachers Colle Record, Teachers
College, Co umhIa UnIversity, [XVII (May, 1956),

522-530.

Lieberman, Elias. "The Function of Today's Junior High
School," Bulletin National Association of Secondar
School PrInprgIs, XXIV (IprII, I95I), I5I-I5B.

"The Origin of the Junior High School,"

MC Clellan, Re No
California Journal of Secondary Education, X (Febru-
ary, o 5' 7 '

lMcKeehan, Rollin. "What are the Administrative Trends in
the Junior High School Organization and Administra-

tion," Bulletin National Association of Secondar
School Brinci aIs, XXXIV (ApriI, I955), I77-I7B.

McNelly, John G. "The Activities of Junior High School
Principals, in California," California arterl 16
2 , 5 - 5.

of Secondar Education, IV (January,

Noar, Gertrude. "A Movement Emer es," Educational Leader-
§__E: XIV (MAY. 1957). A6 -A72.

Shaw, Archibald B. "The Adequate Administrative Staff,"
Overview, II (February, 1961), 15.

Stauffacher, Harry W., et a1. "History and Objectives of
the Junior High School," Bulletin National Associ-
ation of Secondary Sphool FFIncipaIs, XXIV (Becemher,

5 9 '57.
"An Administrative Organization for

Wallace, Charles E.
Instructional Improvement," Bulletin National Asso-
ciation of Secondary School BrinprgIs, XIII (AprII,

5 s ‘50

Weitz, Leo. "The Problem of Delegating Responsibility in a
Larger High School," Bulletin National As ociation
of Secondar S hool Princi aIs, XhV (Octoher, I93I),
BI-A7.

-372-

C. PUBLICATIONS OF THE GOVERNMENT, SOCIETIES, AND
OTHER ORGANIZATIONS

American Educational Research Association, Review of Educa-
tional ResearchS XXIV, Washington, 5. C.: N. E. A.

IFeBruarY: IgSH

Commission on the Education of Adolescents, The High School
We Ne d, Association for Supervision an ricu um
ngeIopment, Washington, D. C.: The Association,

1 59.

Commission on Secondary Curriculum, The Junior High School
he Need, Association for Superv sion and urr cu um
23:; opment, Washington, D. C.: The Association,

Commission on Secondary Schools, The Junior High School Pro-
ram, The Southern Association 0 o eges an ec-
igdgry Schools, Atlanta, Ga.: The Association,
5 .

Council for Administrative Leadership, Your School and Staff-

ihg, Council for Administrative heaaership; AIhany,
Ne Ye: The COMOil, 19570

National Education Association, Addresses apd Proceedings,
Washington, De 0.: Ne E0 Ac, 9 35°C at on,

1899.

North Central Association for Colleges and Secondary Schools,
P licies and Crit rion for the A roval of Seconda
SchooIs, Chicago, III.: The IssocIatIon, I965.

Syracuse University School of Education, Junior Hi h School--
Present Status and Future PotentiaIItIes, gyracuse,
N. I.: Syracuse University Brass, I956.

The American Association of School Librarians, Standards

for S hool Librar Pro rams, Chicago, III.: Zherican
hihrary AssocIatIon, I969.

The University of the State of New York, Finance and School
Staff, The State Education Department, AIhany, N. I.:
The Bepartment, 1961.

-373-
U. S. Department of Health Education, and Welfare, Office
of Education, Statistics of Education in the Uhiped
Stapgp, 1958-59, SerIes thIic Secondary Sc 00 ,
Number 1 Washington, D. C.: Government Printing
Office, i961.

 

 

D. ENCYCLOPEDIA ARTICLES
Monroe, Walter 3. (ed.) Encyclopedia of Educational Regearch,
New York: MacMillan Co., 950, 3A- A3.
E. UNPUBLISHED MATERIALS

Norton, Ben J., Jr. "A Study of the Problems of Beginning
Principals As a Basis for Improvement of the Pro-
gram for Education of Principals at Applachian State
Teachers College." Unpublished Ed. D. dissertation,
ighgol of Education, Florida State University,

5 .

Michigan Department of Public Instruction, Education Pro-
ams fo Children who Ne d S ech CorrectIon,
Ensing, hIchd IThe Department, I96I. (Mimeographedd
The University of the State of New York, Criteria that may

be used to determine the size of an efficient Seconda
55555:. The State EducationaI De rtment, AIhany,

N. Y.: The Department, March, 19 l. (Mimeographed.)

APPENDICES

-37A-

APPENDIX A

SOME SAMPLE STATEMENTS OF OBJECTIVES FOR.MODERN JUNIOR HIGH

I. Gruhn and Douglass, The Modern Junior High School

II.

III.

1.
2.
3.
A.
5.
6.

integration
exploration
guidance
differentiation
socialization
articulation

Leonard V. Koos, The Junior High School

1.
2.
3.

A.
5.

6.
7.

8.

To provide a suitable environment fer children 12-16

year of age.

Exploring interests, abilities, and aptitudes of those

ages. _
Adapting training and education to individual interests

and needs.

To help the individual find himself.

garing for individual differences in the various sub-
ects.

Special care for retarded pupils.

Participation of pupils in school governmental

activities-

Physical diagnosis and remedial work for individuals.

Robert J. Havighurst, Human Development and Education

1.
2.
3.
A.
5.
6.
7.
8.

9.
10.

Achieving new and more mature relations with age-mates
of both sexes.

Achieving a masculine or feminine social role.
Accepting one's physique and using the body effectively.
Aghieving emotional independence of parents and other
aUESe

Achieving assurance of economic independence.
Selecting and preparing for an occupation.

Preparing for marriage and family life.

Developing intellectual skills and concepts necessary
for civic competence.

Desiring and achieving socially responsible behavior.
Acquiring a set of values and an ethical system as a
guide to behavior.

-375-

‘-

IV. The University of the State of New York, A Desigh for

V.

~-37o-

Early Secondary Education in New York State

1. To develop the broad orientation toward other people
necessary for American citizenship.

2. To provide for pupil health and personal adjustment.

3. To help pupils become more independent. I ,

A. To give a breadth of exploratory experiences. -

 

5. To help pupils appraise themselves realistically.

6. To make basic skills and knowledge functional.
7. To prepare pupils for the experiences of later '
adolescence. l“

The New York State Association of Secondary School Prin-
cipals, Proceedings 65th Annual Meeting

1. Provide for common, socialized, systematized and
integrating education.

2. Provide for exploration and discovery of pupils'
special interests, aptitudes and abilities in order
to facilitate education and vocational decisions.

3. Provide Opportunities for pupils to develop social,
cultural, civic, avocational and recreational interests.

A. Provide guidance in order to assist pupils in making
intelligent, wise, educational and vocational choices.

5. Provide opportunities and guidance for pupils to
make satisfactory mental, social, and emotional
adjustments and growth.

6. Provide for individual differences through differ-
entiated curricula, and instruction for varying rate
of progress and provide flexible methods of promotion.

7. Provide experiences in the area of democratic living.

8. Provide for articulation of methods, activities and
courses to facilitate transition from elementary to
senior high school.

 

APTTHUIEX B

GARDEN CITY PUBLIC SCHOOLS
Garden City, New York

Office of Superintendent of Schools February 5, 1958

The New York State Council for Administrative Leadership
began a study of the administrative organization of junior high
schools during the 1956-57 school year. The focal point of the
study was a series of regional seminar discussions by junior
high school principals in New Ybrk State.

Before publishing a report of its findings, CAL is attempt-
ing to gather some additional data concerning the present staffing
of junior high schools. The attached questionnaire can be filled
out in a relatively brief period of time. I would be most
appreciative if you would be willing to undertake this task.

You will receive a copy of the final report from CAL.
Thank you for your cooperation in this matter.

Yburs very truly,

M. F. Egdorf f
Project Coordinator

MFE:rsc
Enclosure

-377..

 

 

A.
B.
C.

D.

E.

-378-

JUNIOR HIGH SCHOOL STAFFING QUESTIONNAIRE

Name of School System

 

Name of Junior High School

 

Number of enrolled pupils in this Junior High School

 

Some school systems provide regularly scheduled assistance to school
buildings from the central office, i.e., a reading specialist assigned
one day a’week to the junior high school, or share services among school
buildings, i.e., an instrumental music teacher who spends half time at
the senior high school and half time at the junior high school. Do any
such personnel serve your junior high school?

Yes No

 

 

If you have answered yes, please list these personnel below indicating
the approximate amount of time they are assigned to your school building.

Title of Position No. of days per week Assigned to
Your Building

 

 

 

 

 

 

 

 

 

 

 

 

 

Exclusive of those personnel mentioned in (D) above, list as indicated
below the professional personnel who work full or part time in this
building. If any of your personnel do not seem to fit the categories
used, change the categories in any way you feel necessary to make your
total staff most clear.

Full Time Part Time
Check % Devoted to
1. .Administrative No. in.Bldg. 352_ BB. .Activity in this Bldg.

 

 

 

Principal

Ass't. Principal

Coordinator of
Student Activities

Others (specify)

l
I

 

 

 

HH l H
llll l H

llll
HH

 

2.

3.

S.

-2-
Full Time Part Time
Check % Devoted to
Guidance No. in Bldg. Yes No Activity in this Bldg.

 

 

Guidance Counselors
Psychologists
Others (specify)

 

 

HHH
mm

mm
HHH

 

Health

School Nurse

Dental Hygienist
Physician

Speech Correctionist
Others (Specify)

 

 

 

Department Chairmen

 

English

Social Studies
Science
Mathematics
Physical Education
Modern Language
Others (specify)

HHH
Hllll

 

 

 

 

IIIH
HHI

 

Services Other Than Those
Listed Above

Reading Specialist
Librarian
Audio-Visual Ed.
Others (specify)

 

 

 

llll H
HH Ill

IHH
Illll

 

 

 

 

Class Room Teachers - Exclude all positions mentioned above even
though the individual may also work as a classroom teacher. For
example, a department chairman released one period a day from
teaching to perform his functions should be included under (A)
above but not in this question.

Total Number

 

JF.

_ 4.80"
- 3 -

7. Are any of your professional staff members employed on an eleven
or twelve months' basis?

Yes No
If you answered yes, please specify:

No. of Mbnths Employed
Position

 

 

 

 

 

IIIH *1

 

HHH *5

 

 

The building principal is hard pressed to perform all the necessary
administrative functions at a junior high school. Please indicate in
column (1) whether you do perform this alone, or in column (2) if you
assign the function entirely to another and indicate to whom you assign
it, or in column (3) if you share the function with another staff member
and indicate with whom.you share it.

Check if If Assigned If Shared
Handled by to with
Improving Educational Opportunity Prin. Alone Whom? Whom?

 

1. Revision of curriculum and
selection of curricular
materials.

 

2. Assisting teachers in diagnosing
the learning difficulties of
pupils.

 

3. Helping teachers in planning
effective remedial instruction.

 

h. Making recommendations to superin-
tendent for policy formation and
revision.

 

5. Direction and coordination of
guidance program.

 

6. Direction and supervision of
pupil activity program.

 

7. Direction of program for excep-
tional children.

 

8. Direction of health and safety
program.

 

9. .Direction of summer recreation
program.

 

-3 81-

 

 

- h -
Check if If Assigned If Shared
Handled by to with
ImprovinggEducational Opportunity Prin: Alone Whom? Whom?

 

10. Coordinating use of instructional
materials.

 

working with Pupils

 

1. Control of pupil behavior.

 

2. Accounting of pupils.

 

3. Scheduling of pupils.

 

h. Maintaining pupil personnel
records.

5. Directing program for orientation
of new students.

 

Obtaining and Developing Personnel

 

1. Selection and recommendation to
the superintendent for employment
of personnel.

 

2. Introduction and orientation of
personnel.

 

3. Supervision of personnel.

 

h. Evaluation of personnel-~recommen-
dations for promotions and reten-
tion.

 

5. Preparation and maintenance of
staff personnel records.

 

6. Selection of substitute teachers.

 

7. Direction and coordination of in-
service training program.

 

8. Counselling personnel.

 

9. Scheduling personnel.

 

maintaining Effective Interrelationships with the Community

1. Helping the superintendent to deter-
mine the educational needs of the
8011001 0

 

2. Preparation of special reports and
bulletins regarding the school.

 

-382-

_ 5 -
Check if If Assigned If Shared
Maintaining Effective Interrelation- Handled.by to with
ships With The Community' Prin. Alone Whom? Whom?

 

 

 

3. Conferring with parents and other
lay citizens.

 

h. WOrking with P.T.A. and other lay
groups a

 

5. Preparation of public relations
information.

 

6. Developing procedure for reporting
pupil progress to parents.

 

7. Planning and coordinating public
relations program for the school.

 

Providing And Maintaining Funds and Facilities

 

1. Preparation of school budget
request.

 

2. Management of appropriation.

 

3. Plant planning and construction.

 

h. Administering insurance program
for students.

 

5. Direction of program of plant
maintenance.

 

6. Direction of school lunch program.

 

7. Supervising intramural activities.

 

8. Determining specifications for
supplies and equipment.

 

9. Requisitioning supplies and equip-
ment.

 

10. Distribution of supplies and
equipment.

 

ll. Inventorying supplies and equip-
ment.

 

12. Preparation of reports for the
superintendent.

 

-3 83-

- 6 -

C}. Are there any members of your staff other than yourself who have line
authority over classroom teachers? If so, please list below:

 

 

 

 

 

 

 

II. If you have an organization chart for your school, please enclose it.

APPENDIX C

Outline of Meetings Held at Syracuse University Dis-
cussing Administrative Organization and Staffing at
the Junior High School

Meeting NO. Io
1. Description of background and purposes of the study.

a. Relationship to Central New York junior high
schools

b. Suggested procedures for the study

c. Distribution of materials relating to the study

2. Small group discussions.examining the purposes of
the junior high school.

3. Developing and agreeing upon a statement of purposes.
Meeting No. II

1. Assignment of portions of the statement of pur-
pose to small groups for further action.

2. Small group discussions examining current practices
in staffing junior high schools.

Meeting No. III

1. Preparation of statement of functions necessary
to the achievement of the purposes outlined for
junior high schools.

2. Allocation of functions to personnel in junior
high schools. .

Meeting No. IV

1. Preparation of promising patterns of administra-
tive organization in junior high schools.

The actual number of meetings and content of the
meetings varied in each area of the state in which such dis-
cussions were held, but they followed basically the pattern
as described above.

-38h-

 

-385-
JAM/UN JSTKAT J VE O R GA NJ ZA'J JON

AND Jr mm c;

A cooperative project by representatives of public school
districts in central New York; The Council for
Administrative Leadership, The School of Education

of Syracuse University, and the Central New York
School Study Council

CENTRAL NEW YORK SCHOOL STUDY COUNCIL
SYRACUSE UNIVERSITY
Syracuse, New York
1 9 5 7

 

-3 86-
-1-

FOREWORD

Within the past few years there has been a concentrated effort
to study school administrative organization and staffing. Bulletins
entitled "Your School and Staffing" were prepared under the auspices
of the Cooperative Development of Public School Administration. These
studies have formed the base for further research which is being
sponsored by the successor organization to the CDPSA, the Council for
Administrative Leadership. This focus of attention on administrative
organization and staffing has raised pertinent questions involving
the elementary school, the junior high school, the senior high school,
and the one-building school district. Each of these is being
studied.

One immediately recognizes the tremendous scope of such an under-
taking and the necessity for a pooling of resources of six professional
associations to accomplish the task. This report represents one
segment of the state-wide study of administrative organization and
staffing of the junior high school. Four or five other sections of
New York have held meetings and from these discussions have prepared
reports on the same subject. This state-wide endeavor was directed
by Dr. Daniel E. Griffiths of Teachers College, Columbia University,
Director of Studies for CAL, and was coordinated by MacDonald Egdorf,
Superintendent of Schools of Garden City.

The School of Education of Syracuse University and the Central
New York School Study Council jointly assumed the responsibility to
conduct the study on the administrative organization and staffing of
the junior high school and to involve the school districts of central
New York. Representatives from 45 school districts accepted the
invitation to participate.

The diligence of all the participants, coupled with a sincerity
of purpose and a vital interest in the problem, warrants commendation
for the time and energies expended and for the excellent materials
included in this report.

Robert C. Stewart
Associate Professor of Education
Syracuse University

 

 

~387-
-2-
PARTICIPATING SCHOOLS

.Altmar-Parish4Williamstown Central School
IBaldwinsville Academy and Central School
(3amden Central School
Cazenovia Central School
Chittenango Central School
(Zincinnatus Central School
(3ortland Public Schools
anrlville Central School
iElmira Heights, Thomas A. Edison School
IBndicott Public Schools
IFabius Central School
IFayetteville-Hanlius Central School
IPulton Public Schools
James R. Fairgrieve School
Phillip Street School
(}eneral Brown High School
C}ouverneur Public Schools
(}reene Central School
Iiarpursville Central School
Ilarrisville Central School
Iierkimer Central School
IHolland Patent Central School
iLafayette Central School
iLeavenworth Central School
lLiverpool Central School
liarcellus Central School
liorrisville-Eaton Central School
iNewark Valley Central School
iNorth Syracuse Central School
Onondaga Central School
Owego Public Schools
Port Byron Central School
Pulaski Central School
iRed Creek Central School
Sauquoit Valley Central School
Sherburne Central School
Sherwood Central School
Syracuse Public Schools
Grant Junior High School
Levy Junior High School
Tully Central School
Vestal Central School
Waterloo Central School
Weedsport Junior-Senior High School
West Genesee Central School

-388-
-3—

PROCEDURES

A temporary planning committee sent invitations to school districts
in the geographic area of central New York to authorize representatives
to participate in the study on administrative organization and staffing

of the junior high school.

This invitation stated that the purposes of

the study was to supply some answers to the following questions:

1.

2.

5.

What are the purposes of the junior high school,
stated operationally?

What are the administrative supervisory functions
to be performed in the junior high school?

What are recommended patterns of administrative
organization for the junior high school?

To what positions should various administrative-
supervisory functions be allocated?

What qualifications should personnel have to fill
the needed administrative-supervisory positions
in the junior high school?

A tentative agenda was established for each of four meetings. It
was during the first meeting that a steering committee was selected.
The steering committee included:

Merrill Lewis, Chairman

Thomas Caton

Thomas Clayton

Paul Halverson

Richard Lonsdale

Robert Oliver

Robert Stewart

Paul Wagner

Bradley Bishop, Research Assistant

On the basis of suggestions by the total group of participants and
of actions by the steering committee, the agenda included:

Meetigg Number One

1. Call to order -- introductions

A.
B.

C.

Origin of the study
Purposes of the study

Relationship of the Central New York Junior High School
Study to

-- the total study

-- the participating districts

Suggested procedure for the Central New York Junior High
School Study

~389-
-4-

2. Distribution of materials
-- CDPSA studies
-- Statements of functions of school administrators
-- Statements of purpose outlined in the literature
-- Statements of purpose outlined by the individual
districts
- Local district organizational charts

3. Small group discussions exxmininga

A. Statement of purposes outlined in the literature
B. Statement of purposes outlined by the individual
districts

4. Developing and agreeing upon a statement of purposesb

General session to discuss the activities of the small
discussion groups to agree upon a statement of purposes in
operational form to be used as the basis for the study.

Meeting Number Two

1. Assignment of portions of the statement of purposes to
small groups for further action.

2. Small group discussions examining:

A. One purpose, stated operationally, as assigned
B. Current practice to implement this purpose including
(1) Functions
(2) Personnel
(3) Adequacy of the current practice
(4) Roadblocks of current practice to achieve
the purpose
(5) Suggested elements to implement the purpose
adequately
a. Functions
b. Organization
c. Personnel
d. Other elements (materials, equipment,
space, etc.)

3. Continue sequentially with other assigned purposes.
4. Interim activities
A. Prepare materials essential for the discussions of
Meeting #3 and Meeting #4.

B. Further examination of elements which appear to be
unique to the Junior High School

 

a See AFHDendix A
599 Alllpendix B

-390-
-5-
Meeting Number Three
1. Preparation of statement of functions c
2. Preparation of allocation of functions and personnel involved.
Meeting Number Four
1. Preparation of statement regarding qualifications.

2. Preparation of patterns of administrative organizationd

 

0 See Appendix C _
d A fifth meeting was necessary to complete the organizational chart.

l.

10.

11.

-391-
-6...

PURPOSES OF THE JUNIOR HIGH SCHOOL

To help students continue the meaningful development of the basic
skills and knowledges of our society. (Such as are developed in
language arts, mathematics, science and other areas.)

To help students develop the democratic skills and attitudes
necessary for American citizenship by appropriate direct
experiences.

To help students better to appraise, understand, accept and
improve themselves as individuals and their age-mates of both
sexes.

To help students gain increasing maturity through increasing
independence from adults and increasing self-discipline.

To help students develop their understanding and practice of
personal health and hygiene.

To help students develop and appreciate moral and spiritual values.

To help students with exceptional characteristics, such as low
academic ability, superior academic ability, physical disability
and social or emotional instability.

To help students discover and explore individual interests,
aptitudes, and abilities to facilitate educational and vocational
planning.

To help students make the transition from elementary school to
senior high school through appropriate activities, courses and
teaching methods.

To help those students who will be terminating their formal
education at the junior high school level.

To help students develop in a physical school environment suitable
for the educational needs of children of junior high school age.

(DQP‘U'AOJNH

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13.
14.
15.
16.

17.
18.
19.
20.
21.
22.
23.
24.
25.

'392-
-7-

ROAD BLOCKS IN LOCAL SCHOOLS WHICH TEND TO RESTRICT
THE PURPOSES OF THE JUNIOR HIGH SCHOOL

Inertia of Personnel

Time and changing personnel

Delineation of authority of guidance personnel
Inadequate preparation of teachers

Lack of follow-up.

Differences of opinion

Lack of information

Inadequate philosophy in regard to curriculum
and discipline

Teach subject matter rather than child

Pupil inertia

Immaturity of students

Cliques and gangs

Poor distribution of pupil participation
Parental influences on child

Community tradition and conservatism
Opposition to theory, practice, and techniques of
guidance

Lack of facilities, time and staff
TranSportation problems

Administrative inertia

Financial Costs

Policy of board of education

State regulations

Administrative procedures and pressures
Departmentalization

Lack of coordination.

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22.
23.

-393-
~8-«

SUCCESSFUL PRACTICES USED IN OVERCOMING ROAD BLOCKS

Education of the community

Proper public relations

Public participation

Parent conferences

In-service training staff and prooram

Use of consultants

Out of community observation

Enrichment within classroom

Core teaching

Increase staff

Improved communications

Broaden educational experiences of board members.
Salary differentials

Use of handbook

Minimum of red tape

Administrative leadership

Ungraded classes

Slower transition

Work-experience program under supervision
Use of law enforcement agencies in advisory
positions

Supervision and coordination of pupil
activities

Extension of extra-class activities
Construction of building on basis of junior
high school purposes and functions.

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-A113-
-18-

ADMINISTRATIVE_FUNCTIONS OF JUNIOR HIGH scuog; PERSONNEL

ALL Personnel ReSponsibilities

1. Making recommendations to Board for policy formulation and revision
Preparation of Special reports and bulletins for general distribution.
Determination of financial needs and construction of the budget.
Control of the budget.
Plant planning.
Inventorying supplies and equipment
Preparation of reports for the Board and State Education Department.

~100wa

ALL Professional Personnel ReSponsibilities

1. Helping the Board of Education determine education needs of the
community.
2. Holding conferences with parents and other lay citizens.
3. Working with PTA and other lay groups.
4. Prepgration of information to be disseminated by public communication
me 1a.

Vice Principal
Major ReSponsibilities

Control of pupil behavior (Broad Interpretation)

Accounting of pupils (attendance).

Direction and supervision of health and safety program.

Careful selection of substitute teachers.

Preparation of Spec. reports and bulletins for gen. distr.

Working with PTA and other lay groups.

Preparation of information to be disseminated by public communica—
tion media.

Planning and coordination of public relations program.

Supervising internal accounts.

Distribution of supplies and equipment.

Inventorying supplies and equipment.

Preparation of reports for the Board and State Education Department.

Shared ReSponsibilities

15.
16.
17.
18.

Scheduling pupils.

Direction of guidance program.

Direction and supervision of pupil activity program.

Administering summer recreation program.

Coordinating use of instructional aids including audio-Visual
manipulative and library materials.

Selection and recommendation to the Board for employment of
professional staff per.

Induction and orientation of professional staff personnel.

SUpervision of professional staff personnel.

Evaluation and recommendation to the Board for promotion and
retention of professional staff personnel.

Maintaining staff personnel records.

Making rec. to the Board for construction and admin. of
salary schedules.

Dir. and coord. of in-service training program.

Counseling prof. staff per.

Scheduling prof. staff per.

Administering student insurance program.

Direction of school lunch program.

Deter. Spec. for supplies and equipment.

Requisitioning of supplies and equipment.

4,01,-
-19-

Reading Consultant
Major reSponsibilities
None

Shared reSponsibilities
l. Assisting teachers in diagnosing the learning difficulties of

2.
3.

pupils.
Helping teachers in planning effective remedial instruction.
Scheduling pUpils.

Director of Health and Physical Ed.
Major reSponsibilities
None

Shared reSponsibilities

l.
2'

Direction and supervision of health and safety program.
Administering summer recreation program.

Guidance Counselor
Major reSponsibilities

3.;

U‘bQM

Assisting teachers in diagnosing the learning difficulties of
pupils.

Scheduling pupils.

Maintaining pupil personnel records.

Direction of guidance program.

Direction of work-experience for individual students.

Shared reSponsibilities

1.

0‘0wa

Improving Educational Opportunity.

Revision of curriculum and selection of curricular .materials.
Helping teachers in planning effective remedial instruction.
Control of pupil behavior (Broad Interpretation).

Direction of program for exceptional children.

DevelOping procedures for reporting pupil progress to parents.

Dept. Chairman Horizontal - No. Adm.
Major reaponsibilities
None

Shared reSponsibilities

PPPP“

9‘

10.
ll.
12.
13.

Improving Educational Opportunity

Revision of curriculum and selection of curricular materials.

Scheduling pupils.

Direction of program for exceptional children.

Coordinating use of instructional aids including audio-visual,
manipulative and library materials.

Selection and recommendation to the Board for employment
of professional staff per.

Induction and orientation of professional staff personnel.

Supervision of professional staff personnel.

Evaluation and recommendation to the Board for promotion and
retention of professional staff personnel.

Maintaining staff personnel records.

Dir. and coord. of in-service training program.

Counseling prof. staff per.

Developing procedures for reporting pupil progress to parents.

Building Curriculum Coordinator
Major ReSponsibilities

.0thth

Improving Educational Opportunity.

Revision of curriculum and selection of curricular materials.
Helping teachers in planning effective remedial instruction.
Direction of program for exceptional children.

Dir. and coord. of in-service training program.

DeveIOping procedures for reporting pupil progress to parents.

Shared ReSponsibilities

l.

Assisting teachers in diagnosing the learning difficulties of
pUpils.

Direction of guidance program.

Coordinating use of instructional aids including audio-visual,
manipulative and library materials.

Induction and orientation of professional staff personnel.

Supervision of professional staff personnel.

Evaluation and recommendation to the Board for promotion and
retention of professional staff personnel.

Counseling prof. staff per.

Dept. Chairman Vertical - No. Adm.
Major ReSponsibilities
None

Shared ReSponsibilities

1.
2.

7.

9.
10.

Direction of program for exceptional children.

Coordinating use of instructional aids including audio-visual,
manipulative and library materials.

Selection and recommendation to the Board for employment of
professional staff per.

Induction and orientation of professional staff personnel.
Supervision of professional staff personnel.

Evaluation and recommendation to the Board for promotion and
retention of professional staff personnel.

Maintaining staff personnel records.

Dir. and coord. of in-service training program.

Counseling prof. staff. per.

DevelOping procedures for reporting pupil progress to parents.

Nurse-Teacher
Major Beeponsibilities

1.

Administering student insurance program.

Shared ReSponsibilities .
l. Assisting teachers in diagnosing the learning difficulties of

2.
3-
4.

pUpils.
Accounting of pupils (attendance)
Maintaining pupil personnel records.
Direction and supervision of health and safety program.

4.06-
-21-

Psychologist
Major ReSponsibilities
None

Shared ReSponsibilities
l. Assisting teachers in diagnosing the learning difficulties of
pupils.
2. Control of pupil behavior (Broad Interpretation).
3. Direction of guidance program.
4. Direction of program for exceptional children.

Dental Hygienist
Major Responsibilities
None

Shared Heeponsibilities
None

Director of Activities
Major ReSponsibilities
1. Direction and supervision of pUpil activity program.

Shared ReSponsibilities
None

School Physician
Major ReSponsibilities
None

Shared Responsibilities
None

Chief Custodian
Major ReSponsibilities

1. Selection and recommendation to the Board for employment of
non-prof. staff personnel.

2. Induction and orientation of non prof. staff personnel.

3. SUpervision of non-professional staff personnel.

4. Eval. and rec. to the Board for promotion and retention of
non-prof. staff personnel.

5. Direction of program of plant maintenance.

Shared Responsibilities
1. Maintaining staff personnel records.
2. Deter. Spec. for supplies and equipment.
3. Distribution of supplies and equipment.

 

-407-
-22-
Cafeteria Manager
Major Beeponsibilities
1. Selection and recommendation to the Board for employment of non-

prof. staff personnel.
. Induction and orientation of non prof. staff personnel.
. SUpervision of non-professional staff personnel.
. Eval. and rec. to the Board for promotion and retention of

non—prof. staff personnel.
5. Direction of school lunch program

boom

Shared ReSponsibilities
l. Maintaining staff personnel records.

Building Secretary
Major Responsibilities
None

Shared Beeponsibilities
1. Maintaining pupil personnel resords.
2. Maintaining staff personnel records.
3. Supervising internal accounts.
4. Distribution of supplies and equipment.

Teachers
Major Beeponsibilities
1. Deter. Spec. for supplies and equipment.
2. Requisitioning of supplies and equipment.

Shared ReSponsibilities
1. Control of pupil behavior (Broad Interpretation).
. Accounting of pupils (attendance).
Maintaining pupil personnel records.
Direction of guidance program.
Direction and supervision of pupil activity program.
Direction and supervision of health and safety program.
. Making rec. to the Board for construction and admin. of
salary schedules.
. Dir. and coord. of in-service training program.
9. DevelOping procedures for reporting pupil progress to parents.

m

Director Instructional Materials

Major Reaponsibilities
l. Coordinating use of instructional aids including audio-visual,

manipulative and library materials.

Shared Reaponsibilities
1. Induction and orientation of professional staff personnel.

 

 

34.98-

ADMINISTRATIVE ORGANIZATION F05:

JUNIOR HIGH

(INIERNAL AND msrmcr mmmsalrs)

 

 

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WINIS'I’RATNE

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JUNIOR HIGH

 

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Building Qu‘riculun Chordinstor
Dental Hygienist

Dept . Chairmen. Horizontal-No Adm-
Dapt- Chairmen. Vertiml-No Adm-
Director of Activities

Director of Health .9. Phys. Ed-
Director of Instructional later-isle
Guidance CounseIOr

Nurse-Teacher

Psychomgist

Reading Cbnsultant

School Physician

Teachers

 

W—PIU‘ESSIWAL SIAFF

 

(hfetaria lbnager and staff
and OJstodian and Staff
Secretary (and Staff)

 

 

 

 

 

 

0.....IOD‘CI.I...‘...U'..O--.D--- ................

Administrative Authority
wordinat ion

CCCCCCCCCCC

 

 

m: Within the junior high school building unit. the relationships and levels of responsibility among the
staff will depend upon and vary with the particular functim being executed- For an analysis of the

administrative functions of the building personnel. see accompngring sections of this reporto
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-409-
-24:
AFPENDIX A

SOME SAMPLE_§TATEMENTS OE_OBJECTIVES FOR MODERN JUNIOR HIGH SCHOOLS

Gruhn and Douglass, The Modern Junior High School

9‘01n»c>n)h-

integration
exploration
guidance
differentiation
socialization
articulation

Leonard V. Koos, The_Junior High School

1.
2.

(DNIO‘Ul-bw

Robert

a>~10~91n-9)A)fd

CO

1 .

To provide a suitable environment for children 12 - 16 years of age,
Exploring interests, abilities, and aptitudes of those ages.
Adapting training and education to individual interests and needs.
To help the individual find himself.

Caring for individual differences in the various subjects.

Special care for retarded pupils.

Participation of pupils in school governmental activities.

Physical diagnosis and remedial work for individuals.

J. Havighurst, Human Develgpment and Education

Achieving new and more mature relations with_59e-mates of both sexes.
Achieving a masculine or feminine social role. '
Accepting one's physique and using the body effectively.

Achieving emotional independence of parents and other adults.
Achieving assurance of economic independence.

Selecting and preparing for an occupation.

Preparing for marriage and family life.

Developing intellectual skills and concepts necessary for civic
competence.

Desiring and achieving socially responsible behavior.

Acquiring a set of values and an ethical system as a guide to behavior.

The University of the State of New York, A Design for Early Secondary
Education in New York State

1.

#091wa

To develop the broad orientation toward other people necessary
for American citizenship.

To provide for pupil health and personal adjustment.

To help pupils become more independent.

To give a breadth of exploratory experiences.

To help pupils appraise themselves realistically.

To make basic skills and knowledge functional.

To prepare pupils for the experiences of later adolescence.

The New York State Association of Secondary School Principals, Proceedings
65th Anngal Meeting

1.

2.

 

Frovide for common, socialized, systematized and integrating
education.

Provide for exploration and discovery of pupils’ special interests,
aptitudes and abilities in order to facilitate education and
vocational decisions.

-410-
~25-

Provide opportunities for pupils to develop social, cultural,
civic, avocational and recreational interests.

Provide guidance in order to assist pupils in making
intelligent, wise, educational and vocational choices.
Provide opportunities and guidance for pupils to make satis-
factory mental, social, and emotional adjustments and growth.
Provide for individual differences through differentiated
curricula, and instruction for varying rate of progress and
provide flexible methods of promotion.

Provide experiences in the area of democratic living

Provide for articulation of methods, activities and courses
to facilitate transition from elementary to senior high
school.

 

-hll-
~26-

APPENDIX B
SUGGESTED OUTLINE OF PROCEDURE FIR THE SMALL GROUP DISCUSSION
Meeting Number One

Please note that one session has been set aside for the examination and develop-
ment of the purposes of the Junior High School, stated operationally. In order
to conserve time and effort, it is proposed that each of the participants in

the small group discussions critically examine the materials distributed. These
statements Of purposes in the materials distributed will not be all-inclusive.
It is therefore necessary for the small group participants to add those items
which they feel can be classified as purposes of the Junior High School. The
results of the small group discussions will be consolidated into a single
statement of purposes in a general session of all participants prior to adjourn-
ment this afternoon.

It is suggested that:
the group should select one statement of purpose for discussion

the group seek answers to such questions as:
Is this a sound purpose Of the Junior High School?
Is this an operational statement of purpose?
If not, how should the statement be revised?
Is this statement of purpose unique to the Junior High School?

JUNIOR HIGH SCHOOL STUDY DISCUSSION GROUP #
REPORTING FORM

1. Statement of purpose:

2. Statement of purpose accepted: (yes) (no). If (no) what is the revised
statement Of purpose to which you can subscribe?

3. Is the statement Of purpose listed in (#1) (#2) above unique to the Junior
High School? (yes) (no). If (no) to which level or levels is it equally
common?

 

Partially common?

 

-h12-
-27-

APPENDIX C
SUGGESTED OUTLINE OEAPRQCEDURE FOR THE SMALL GROUP DISCUSSIONS

Meeting Number Two

Please note that one session has been set aside for the discussion of current
practices and suggested revisions of current practices of Junior High School
organizations, functions, etc. It is suggested that the group seek answers
to such questions as:

What are the local district patterns of action to implement the

purpose?

What are the roadblocks on the local district level which tend to

prohibit adequate implementation of this purpose?

What are the suggestions for overcoming these roadblocks?

What functions are associated with this purpose tO incorporate

it into the local district program?

To what positions should the various administrative-supervisory

functions be allocated?

What personnel is necessary to fill these positions?

 

JUNIOR HIGH SCHOOL STUDY DISCUSSION GROUF’#

REPORTING JBFORM

 

1. Statement Of purpose:

2. Suggested elements to implement the j purpose adequately:

 

OPersonnel to perform functions
Functions to # per Responsibility_ .
be performed Title 300 direct advisory coordinating

 

 

 

J
I
I
l

 

 

 

 

 

 

 

3.

.2
.C ‘