In conclusion, I would say that in my opinion central control of municipal accounts is the most important administrative reform which can be undertaken. For it is only through some such kind of control that uniformity of accounts and records can be secured. Uniformity of accounts is an absolute necessity if we are to have accounts kept in such a way as to exhibit results of administrative efficiency. And greater administrative efficiency both from the point of view of economy and from that of service rendered is the great desideratum in municipal government. It is only through such efficiency that the taxpayer can hope to secure a diminution of the crushing burden now imposed upon him, and it is only after such efficiency has been secured that the way will be opened for that greater extension of municipal activity which apparently is desired by so many of our citizens.

Instruction in Municipal Government in Secondary and Elementary Schools.

By Dr. WILLIAM H. MAXWELL
Superintendent of Schools, New York City, Chairman

AND

J. J. SHEPPARD

Principal of the High School of Commerce, New York, Secretary

The Committee on Instruction in Municipal Government in American Educational Institutions submits the following report:

Questionnaires.

In November, 1903, a questionnaire was prepared (a copy of which is appended to this report), and sent to twelve hundred teachers, school officers and those interested. One hundred and twenty responses were received. The small number of replies was not a matter of great surprise to the committee, for it well knew that little attention had been given The to this field of instruction,-so little, in fact, that the sub-committee on the history of the work has practically no report to make. At the present time, generally speaking, no systematic instruction of any consequence is given in the public school. The questionnaires were designed as much to stimulate interest as to secure information, and in this they were successful. The replies indicate a recognition of the importance of the subject and a keen desire to do something if somebody will point the way. It seems desirable, therefore, to print in full the several reports of the sub-committees, as they contain much that is suggestive. It is hoped that the plan proposed may interest some schools and induce them to attempt definite and systematic instruction in a field hitherto unfortunately neglected. The experiments thus made will doubtless lead to something which may be taken up generally and given the place it richly deserves in the curriculum of the public school.

Following is a brief summary of the several reports of the sub-committee :

The sub-committee on elementary program makes a number of suggestions, some of which are as follows:

Summaries.

"Moral and civic instruction should permeate the entire school life of the child. An effective part of this instruction will spring inciden

tally from the rich subject-content of the course.

"In the daily opening exercises, the words of good citizens, the holding up of great examples and incentives, the patriotic songs and recitations are all a part of the civic instruction.

"In the early study of nature, geography and biography, civic ideas spring from deep ground.

"In the contact with the best literature suited to the young pupil, the heart-throb of civic emotion and of the best inner life of the people is felt.

"In the study of pictures and historic architecture, ideas of civic beauty and order are in-breathed. In the study of science and invention, of geometry and arithmetic, an exact civic conscience may be aroused; of electricity, leads to the lighting and transit power of the city, of mathematics, to the finance and comptrollership.

Elementary
Program.

"The local history is the beginning of instructed citizenship. The country's history is the story of state and national association and government. The historic biography has for its keynote civic virtue. The English history contains all this, in another setting, and enables the pupil by comparison to comprehend development, and give a critical standard. It should do away with prejudice; and may stir the first sense of world-citizenship.

"All this, and how much there is, is involved in the incidental teaching of civics."

As to the systematic:

"In the sixth year, a simple reading book on the subject will set these civic ideas in order.

"In the seventh year, may be a review and a comparative enrichment.

"In the eighth year, follows a sketch of the activities and

Q

mechanism of state and national government, with a short, intense study of the municipality, its departments, officers and ideals.

"Such, made luminous by the teacher, seems a sufficient presentation of the subject of national, state and municipal civics,-of citizenship, for the elementary school."

High School
Program.

The sub-committee on high school program reports in favor of teaching the subject in the fourth year of the high school, and presents the

following outline of topics:

OUTLINE OF MUNICIPALITIES

I. The origin and development of municipal government.

1. The English municipality.

(a) The borough.

(b) The influence of the gilds.

(c) Modern development.

2. The growth in America.

(a) The colonial period.

(b) The period before the civil war.
(c) The industrial period.

II. The system of government.

1. The charter.

2. The legislative department.

3. The executive and elected officers.

4. Administrative boards and commissions.
5. Municipal courts.

III. Prevailing conditions in the United States.

1. Rapid growth.

2. Unsatisfactory system of government.

3. Incompetent and unfaithful officials.

4. Influence of political machinery.

5. Foreign population.

6. Large bonded debts.

7. Influence of municipal corruption on the state and nation.

IV. Some reform movements.

1. Home rule.

2. The merit system.

3. Time and manner of holding elections.

4. Increased power and responsibility of the mayor.

5. Choosing of administrative boards.

6. Ownership and control of public utilities.

7. Terms, salaries, and checks upon officers.

8. A model progress.

V. Some reform forces.

1. The recent awakening.

2. The reform league.

3. Education.

VI. The new patriotism.

1. The true spirit of civic loyalty.

2. The opportunity and responsibility of the individual citizen. When references are given to a high school pupil, they should be definite, as brief as possible, and to the most authoritative as well as readable books. Magazine articles and newspaper comments should be included.

The sub-committee on student self-government does not find itself ready to endorse the system in general or approve strongly

Student Self-
Government.

any of the several plans now in use in various schools. It describes plans carefully, and it is possible that a more extended acquaintance with them among schools may bring them into more general use until their value has been given a thorough and satisfactory test. The purpose of the system is admirable, but the practical difficulties in carrying it out must be overcome in order to ensure its acceptance as a working plan.

Two paragraphs of the committee's report are of special interest.

"It would seem desirable to include among the aims of the school city some positive and constructive work for civic betterment, something which should broaden the thought of the pupil as to social needs, force them to exercise their judgment in planning school and neighborhood improvements, and train them to form some business habits in carrying out such plans.

"The object of both the schemes which have been described, is to foster a sense of social obligation which is the first essential of good citizenship. The child needs to be taught that, even as a child, he cannot live for himself alone, that his own well-being is inextricably with the well-being of others, that he is affected by their acts, and they by his, and that there is a mutual obligation to self-restraint and to active service."

The sub-committee on the literature of the subject reports