PRESIDENT'S REPORT.

To the Honorable Board of Education of the City of Sacramento.

GENTLEMEN: At the close of the first year of the government of the city under the new charter, it is proper that each department should report its transactions to the people somewhat more in detail than in the ordinary annual reports. While it has not been customary since the earlier years of the existence of this department for the president of the board to file a report, yet I feel there will be no impropriety in it, as reflecting a view from the standpoint of a school director, who can see the operations of the schools and the results of our popular education with a more conservative eye than can the instructor or the layman citizen.

FINANCIAL.

This board acts under the general school laws and that portion of the city charter relating to the educational department. So far as the primary and grammar schools are concerned, the general laws control, and we are practically the trustees of Sacramento school district-a part of the general state school system; but with the high school we deal directly as a city board of education. Under recent decisions of the supreme court, the line of distinction of these dual powers of the board has been sharply defined, and the latest decision requires that the moneys derived through state and county channels must be kept in the county treasury, and separate from those

raised on the city tax-roll. This decision will have the wholesome effect of requiring that there shall be a strict compliance with the provisions of the Constitution and laws limiting the expenditures to the revenues of each year. Section 18 of Article XI of the Constitution provides that:

"No *** board of education, or school district, shall incur any indebtedness or liability in any manner, or for any purpose, exceeding in any year the income and revenue provided for such year, without the assent of two-thirds of the qualified electors voting at an election to be held for that purpose, nor unless, before or at the time of incurring such indebtedness, provision shall be made for the collection of an annual tax sufficient to pay the interest on such indebtedness as it falls due, and also to constitute a sinking fund for the payment of the principal thereof within twenty years from the time of contracting the same. Any indebtedness or liability incurred contrary to this provision shall be void."

This provision, and one similar in the laws, has been disregarded for many years, and the fault has in a large measure been with the past boards of trustees. Prior to 1893 all the money for the support of the high school, and such part as was needed to sustain the primary and grammar schools over the amount received from the state and county apportionments, was raised by a levy on the city assessment roll. The board of education could call for a levy of thirtyfive cents on the $100 on an itemized estimate, but the trustees could cut down the percentage if they desired. This they did almost every year. For a series of years before 1886 the educational department was allowed but a thirty-cent rate. In that year,

while the general city tax rate was increased to $2.10 from $1.90 in 1885, the school tax was cut down to fifteen cents, and at the end of the year the fund was short $8,302. In 1887 the rate was increased to twenty cents, and at the close of that year the deficit was $8,406.36. In 1886 the schools were allowed twenty-eight cents, in 1889 thirty-two, in 1890 twentynine, in 1891 thirty-two, and in 1892 twenty-six. In January, 1892, when I became a member of the board, there was an inherited shortage of over $4,000. The board of education instituted proceedings against the trustees to compel the levy of a higher rate, sufficient to place the department on a solvent basis, but the courts decided that the trustees had the power to fix the rate, and as a consequence the efforts of the late board of education to present a clean balance sheet to you, gentlemen, who succeeded them, failed, though the indebtedness was considerably reduced. With all the funds in bulk in the city treasury there was a temptation to draw against the fund generally, and not regard the city school money proper as distinguished from the state and county revenues. With the moneys kept separate, as they now are, that will be impossible, and the board will be compelled to make estimates that will provide sufficient money in each fund. This will bring about a more satisfactory state of things.

CENSUS ENUMERATION.

Before the taking of the last census I presented a report that showed that there had been a steady decrease in the number of census children reported, and the board particularly instructed the census marshals to be more painstaking in their work. The

returns showed a gratifying increase, and the canvas was so thoroughly made that very few escaped enumeration. The same admonition should be given to the marshals who will take the next census. Within the past year there has been a phenomenal increase of our juvenile population. This was demonstrated by the large increase of pupilage at the beginning of the present school year. Teachers inform me that a considerable number of their pupils are new residents of the city. From the clerks who conducted the registration of voters I learned that a great many were registered on transfers, and real estate agents report that few houses are to let. This indicates that our next census will show a further increase if it will be carefully taken.

ELECTION AND PROMOTION OF TEACHERS.

The question of the election and promotion of teachers is one that has occupied much attention of school boards. It is very common to charge that the influence of friends of applicants is given undue weight, and that qualification does not receive the recognition it deserves. Perhaps that criticism could have been applied with justice in this city, but from the elections that have been had in this board, there has been demonstration that qualification had been the controlling factor in the selections. There is a disposition among the members to be even more rigid in their requirement in this regard, that they will feel that each teacher elected will be a positive element of strength to the department, and in that direction we cannot go too far. I have found that the persons who have asked for a delegation of my judgment in favor of particular applicants, for reasons

of friendship, have been few in number, and, in most instances, they would be incompetent to form a proper judgment were they in a position to exercise the authority, even if they had in their minds the relative claims of the very many applicants we have to consider. While considerations of sympathy are strong, regard for the interest of one person in being selected as a teacher cannot outweigh the greater claim of justice to thirty or forty pupils who will be under her control. Applicants who rely only on a demonstration of their qualification naturally receive consideration, and they unquestionably deserve it over those who depend for their preferment on sending persons to the directors to solicit their votes "because she is my friend." Our rule that in promotions, qualification being equal, length of service will control is, perhaps, nearly right, so far as it has been made to apply to the lower grades. Such promotions as have been made under it have fallen to meritorious teachers, and to a few it has been the means of rendering tardy justice.

POST-GRAMMAR GRADE RECOMMENDED.

In a former report I recommended that a postgrammar grade be established in the Perry seminary building, with a course of one year, and designed to afford to the very many pupils who leave the schools at the grammar graduation, an opportunity to receive practical business training. A large percentage of the pupils, boys particularly, never go beyond the grammar school, either from the inability of their parents to keep them longer in school, or from the inclination of the ambitious youth to do something for himself. The lack of further education is sadly