Organizational Patterns For Supervisory Services In Selected California Unified School Districts

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Content ORGANIZATIONAL PATTERNS FOR SUPERVISORY SERVICES IN SELECTED CALIFORNIA UNIFIED SCHOOL DISTRICTS A Dissertation Presented to the Faculty of the School of Education The University of Southern California In Partial Fulfillment of the Requirements for the Degree Doctor of Education by Henry Samuel Molino January 1960 This dissertation, written under the direction of the Chairman of the candidate’s Guidance Com m ittee and approved by all members of the Com m ittee, has been presented to and accepted by the Faculty of the School of Education in partial fulfillment of the requirements for the degree of D octor of Education. D ate......................... J ^ ^ . ............................................. ........ j Dean Guidance Committee TABLE OF CONTENTS CHAPTER PAGE I. THE PROBLEM.................................... 1 Purpose of the investigation ............... 1 Purpose of the s t u d y ..................... 1 Statement of the problem » ............... 2 Basic assumptions............ ............ 4 Importance of the study . . . . . . . . . . . 4 Importance of supervisory services . • • . 5 The challenge to American education .... 7 The challenge of unification ....... 8 Scope and limitations of the s t u d y........ 11 Scope of the s t u d y ...................< > • . 11 Delimitation of the study................. 13 Definitions of terms used ......... 13 Organization of the remainder of the study . 17 II. REVIEW OF RELATED LITERATURE................. 19 Overview of the general literature......... 19 Related research studies ................. 20 Literature on administration and super vision ..................... 34 Periodical literature ..................... 49 The development and meaning of supervision . 55 ii CHAPTER PAGE Definition of supervision ............... 55 Early organization of supervisory services 57 Contrast between traditional and modern supervision........................... 58 The need and desire for supervision . . . 60 The value of supervision.......... 62 Types of organization for supervision * . . 65 The dualistic system..................... 66 The functional system................... 67 The line-and-staff system............... 68 The coordinate system ................. 69 Chapter summary........................... 71 III. THE PROCEDURE OF THE INVESTIGATION... 75 Compilation of preliminary criteria .... 75 The initial survey......................... 76 Construction of the initial questionnaire 76 Validation of the questionnaire ........ 77 Administration of the trial questionnaire 77 Distribution of the initial questionnaire 78 Letter of transmittal ................... 78 The follow-up letter..................... 79 The intensive follow-up survey ............. 79 Construction of the follow-up check lists 79 Validation of the check lists.......... 80 iii CHAPTER PAGE Distribution of the follow-up questionnaires ............................ 80 Letter of transmittal ............... 81 Report of results in districts ............ 81 Development of criteria for supervisory organization ........................ 82 IV. RESULTS OF THE SURVEY OF ORGANIZATION OF SUPERVISION IN CALIFORNIA UNIFIED SCHOOL DISTRICTS....................... 84 The survey procedures ........................ 84 Adequacy of the sampling................... 85 Treatment of the data . . . . . . . . . . . 85 The respondent school districts . ........... 85 Forms of school district organization . . . 85 Positions held by respondents ....... 87 Counties surveyed .......................... 87 Classification of personnel ................. 89 Administrative-supervisory ............... 89 Special teachers ............................ 91 Special services ............................ 94 Length of assignment ..................... 96 Building principals ........................ 97 Central office administration.............. 99 Supervisory personnel ...................... 99 Special services personnel ................. 101 iv CHAPTER PAGE Special teachers ............................ 104 Identification of immediate superior ......... 105 Administrative personnel ................... 106 Special personnel «... 108 Supervisory personnel ..................... 110 Reactions to the supervisory organizations . . 112 Factors affecting organization ........... , 112 Relationships between supervisors and principal......................... 116 Relationships between teachers and supervisory personnel . 118 Relationships among supervisory personnel . 120 Understanding of supervisory organization . 123 Responsibilities for the results of instruction................................ 125 Achievement of instructional goals ........ 126 Coordination of supervision ............... 128 Major strengths of the supervisory organization .............................. 130 Strengthening the supervisory organization . 133 Influence of the superintendent............. 139 Staff ratios..................... ............ 144 Ratio of students to classroom teachers . . 144 Ratio of teachers to administrative- supervisory personnel......................146 v CHAPTER PAGE Chapter summary ............................... 148 V. RESULTS OF INTENSIVE SURVEY OF SUPERVISORY ORGANIZATIONS IN SIX SELECTED UNIFIED SCHOOL DISTRICTS IN CALIFORNIA............... 151 School districts included in the study .... 152 Organizational charts ....................... 152 The sampling............................... 163 Treatment of the data....................... 163 Classification of respondents ................. 165 Experience in the district................. 165 Sex ............................ . . . 167 Clarification of positions held by respondents............................... 167 Overview of supervisory organizations ........ 173 The development of the supervisory organizations ............................. 173 Understanding the supervisory organization . 177 Possible changes in organization .......... 183 Evaluation of the supervisory organization . 188 Instruction and the supervisory organization . 191 Supervisory organizations and articulation . 191 Attainment of instructional goals .......... 194 Written supervisory plans ................... 196 Teachers' responsibility for instruction . . 198 Teaching methods...................... 207 vi CHAPTER PAGE Participation on vertical committees .... 215 In-service staff conferences .............. 216 Personnel and the supervisory organization . . 218 Nature of administrative and special positions........................ 218 Coordination of the supervisory program . . 222 Frequency of review of job responsibilities 227 Written job specifications ................. 229 Availability of time for meeting responsi bilities ................................. 231 Provisions for resource personnel ........ 239 Professional growth of teachers ...... 241 Understanding procedures for obtaining instructional aid to teachers.......... 243 Evaluation of the work of teachers........ 244 Sufficiency of supervisory services .... 257 Areas of supervisory needs................. 260 Strengthening the supervisory organization . 264 Chapter summary............................. 268 VI. BASIC CRITERIA FOR SUPERVISORY ORGANIZATIONS . . 272 The development of a tentative list of criteria................................... 272 The final list of criteria................... 273 Additional criteria derived from the survey results ............................. 295 vii CHAPTER PAGE Chapter summary............................. 301 VII. SUMMARY, CONCLUSIONS AND RECOMMENDATIONS . . . 308 General summary ............................... 308 The problem.................................. 308 Procedure.................................... 310 Summary of findings........................... 310 Personnel maintained ................... 310 Length of employment for positions maintained................................ 312 Designation of immediate superior .......... 313 Factors affecting the establishment of supervisory organizations ................. 314 Understanding the supervisory organization 314 Development and maintenance of rela tionships ......................... . . . 313 Attainment of instructional goals ..... 317 Responsibility for the results of instruction ..... ..................... 317 Responsibility for coordinating supervision 318 Major strengths of the supervisory organizations ............................. 318 Strengthening the supervisory organization 319 The superintendent's role in strengthening supervisory organizations ................. 320 Criteria for supervisory organizations . . 320 • • • V11X CHAPTER PAGE Conclusions............................. 326 Recommendations............................. 330 Implications for further research ............ 334 BIBLIOGRAPHY........................................ 336 APPENDIX A. Questionnaire Directed to Selected California Unified School Districts . . 347 APPENDIX B. Questionnaire Directed to Administra tive-Supervisory Staff Members in Six Selected California Unified School Districts ....................... 349 APPENDIX C. Questionnaire Directed to Teachers in Six Selected California Unified School Districts ....................... 351 APPENDIX D. Validation Form of Questionnaire .... 353 APPENDIX Eo Letter of Transmittal . ............ 355 APPENDIX F. Follow-up Letters..................... 357 APPENDIX G. Participating Districts Listed by Counties................................ 366 APPENDIX H. School Districts and Respondents Who Cooperated in the General Survey, Arranged by Enrollment Classifica tions ................ 368 APPENDIX I. The Organization of Supervisory Ser vices in California Unified School Districts of Various Sizes ............. 373 ix LIST OF TABLES TABLE PAGE I. Form of School District Organization in Cali fornia Unified School Districts, 1957-58 . . 86 II. Positions Held by Respondents................ 88 III. Classification of Administrative-Supervisory Personnel ................................ 90 IV. Classification of Supervisory Personnel . . . 92 V. Classification of Respondent Special Teachers 93 VI. Classification of Special Services Personnel • 95 VII. Length of Assignment of Building Principals . 98 VIII. Length of Assignments of Central Office Administrative Personnel ................... 100 IX. Length of Assignments of Central Office Supervisory Personnel ...................... 102 X. Length of Assignments of Special Services Personnel.................................. 103 XI. Immediate Superior of Administrative Personnel 107 XII. Immediate Superior of Special Personnel . . . 109 XIII. Immediate Superior of Supervisory Personnel . Ill XIV. Factors Affecting the Organization of Supervisory Services ........................ 113 XV. Ways in Which Disagreements Between Principals and Supervisors Are Resolved............... 117 TABLE PAGE XVI. Source of Teachers' Direction for Methods of Instruction ..... .................. 119 XVII. Establishment of Relationships Among Supervisory Personnel ................... 121 XVIII. Degree of Understanding of the Supervisory Organization ................... ..... 124 XIX. Degree of Achievement of Instructional Goals 127 XX. The Position Responsible for Coordinating the Supervisory Program ................. 129 XXI. Major Strengths of the Supervisory Organization ............................. 131 XXII. Recommended Strengthening of Supervisory Organization by the Addition of Personnel 135 XXIII. Modifications Recommended for Strengthening the Supervisory Organization ........... 136 XXIV. The Superintendent's Role in Strengthening the Supervisory Organization ........... 140 XXV. Ratio of Students to Teachers in California Unified School Districts Enrolling 2,941 or More Pupils in 1957-58 145 XXVI. Ratio of Teachers to Administrative- Supervisory Personnel in California Unified School Districts Enrolling 2,941 or More Pupils in 1957-58 ..... 147 xi TABLE PAGE XXVIIo Six Unified School Districts Included in the Intensive Study of School District Super visory Organization .................... 153 XXVIII. Distribution of Responses from Districts Included in the Intensive Study ..... 164 XXIX. Respondents' Length of Service in the District............................. 166 XXX. Sex of Respondents..................... 168 XXXI. The Positions Held by Respondent Adminis trative Personnel................... 169 XXXII. The Positions Held by Respondent Special Personnel........................... 171 XXXIII. Levels of Assignment of Respondent Class room Teachers ................ ..... 172 XXXIV. The Manner in Which Supervisory Organiza tions Were Developed................. 174 XXXV. How Supervisory Organizations Were Developed, as Reported by Administra tive and Special Personnel in Six Unified School Districts ................ 176 XXXVI. Understanding of the Supervisory Organiza tion., as Reported by All Respondent Groups from Six Unified School Districts . 179 XXXVII. Extent of Understanding of the Supervisory Organization, as Reported by All xii TABLE PAGE Respondent Groups from Six Unified School Districts ....................... 180 XXXVIII. Flexibility of the Supervisory Organiza tion, as Reported by Administrative and Special Personnel ................... 184 XXXIX. Flexibility of the Supervisory Organiza tion, as Reported by Administrative and Special Personnel in Six Unified School Districts ................. 186 XL. Role of the Supervisory Organization in Developing Articulation Between Grade Levels.................................. 192 XLI. Person to Whom the Teacher Is Responsible for the Results of Instruction, as Reported by All Respondent Groups from Six Unified School Districts ........... 199 XLII. Positions to Which Teachers Are Considered Responsible for the Results of Instruc tion in Regular Subjects, as Reported by All Respondent Groups from Six Unified School Districts ....................... 202 XLIII. Positions to Which Teachers Are Considered Responsible for the Results of Instruc tion in Special Subjects, a Reported by All Respondent Groups from Six Unified xiii TABLE PAGE School Districts ........................... 205 XLIV. Sources of Direction on Teaching Methods, as Reported by Teacher Groups............. 210 XLV. Analysis of the Nature of Staff Positions, as Reported by Administrative and Special Personnel in Six Unified School Districts................................. 220 XLVI. The Leadership Position in the Coordination of Supervision, as Identified by Adminis trative and Special Personnel in Six Unified School Districts ................. 223 XLVII. The Position Providing Leadership for the Coordination of Supervision ............ 226 XLVIII. Frequency of Review of Job Responsibili ties, as Reported by Administrative and Special Personnel in Six Unified School Districts............................... 228 XLIX. Adequacy of Time Available for Responsi bilities, as Reported by Administrative and Special Personnel in Six Unified School Districts ......................... 232 L. Adequacy of Time Available to Supervisors for Giving Supervisory Aid, as Reported by Three Teacher Groups in Six Unified School Districts ......................... 236 xiv TABLE PAGE LI. Responsibility for Teacher Evaluation .... 246 LII. Teacher Opinions Concerning the Identity of the Persons Who Evaluate Their Work . . . 251 LIII. Areas of Supervisory Needs ................... 262 xv LIST OF FIGURES FIGURE PAGE 1. Organization of a Large City School System . . 41 2. Organizational Chart of District A ........... 155 3. Organizational Chart of District B ...... 156 4. Organizational Chart of District C ........... 157 5. Organizational Chart of District D ...... 159 6. Organizational Chart of District E ........... 161 7. Organizational Chart of District F ........... 162 8. Organization of Supervisory Services in a 33,953-pupil Unified School District .... 374 9. Organization of Supervisory Services in a 29.000-pupil Unified School District .... 375 10. Organization of Supervisory Services in a 24,349-pupil Unified School District .... 376 11. Organization of Supervisory Services in a 22,850-pupil Unified School District .... 377 12. Organization of Supervisory Services in a 16,711-pupil Unified School District .... 378 13. Organization of Supervisory Services in a 15.000-pupil Unified School District .... 379 14. Organization of Supervisory Services in a 13,065-pupil Unified School District .... 380 xvi FIGURE PAGE 15. Organization of Supervisory Services in a 11,200-pupil Unified School District .... 381 16. Organization of Supervisory Services in a 10,918-pupil Unified School District .... 382 17. Organization of Supervisory Services in a 10,900-pupil Unified School District . . ; . 383 18. Organization of Supervisory Services in a 6,600-pupil Unified School District ......... 384 19. Organization of Supervisory Services in a 3,909-pupil Unified School District ......... 385 20. Organization of Supervisory Services in a 3,640-pupil Unified School District ..... 386 xvii CHAPTER I THE PROBLEM I. PURPOSE OF THE INVESTIGATION The organizations through which school systems render supervisory services to classroom teachers represent a serious responsibility for school administrators and boards of education. In unified districts, where instruc tional coordination extends from the kindergarten through grades twelve or fourteen, even greater responsibilities and opportunities exist for providing supervisory aids that assure vertical as well as horizontal articulation of instruction. An ever increasing number of school districts in California are becoming unified or are contemplating unifi cation. The number of school districts in California which became unified grew from 63 in 1949-50 (98:114) to 96 in 1957-58 (99:152). This fact makes the study of organiza tions planned by unified school systems to meet the needs for supervisory services an increasingly urgent educational undertaking. Purpose of the study. The purpose of this investi gation was to determine standards for the evaluation and 1 improvement of supervisory organizations in unified school districts. The assumption was made that a critical study of the organizational patterns of supervisory services could aid in the development of criteria which would be beneficial in establishing and evaluating supervisory organizations. Districts were assumed to vary widely in the kind and extent of supervisory services provided for teachers. Whether these variations were due to economic or philo sophical confederations, or to a combination of these and other factors, the functioning of the established organiza tions for rendering supervisory services was considered a vital and challenging phase of school administration. Statement of the problem. The problem undertaken in this investigation was an analysis of the organizational patterns for rendering supervisory services in selected unified school districts in California. More specifically, the investigation was designed to provide answers regarding the following questions: 1. During the 1957-58 school year, what was the proportion of administrative, supervisory, special teaching and special services personnel employed in selected unified school districts in California? 2. What was the length of employment in calendar months for each named position? 3. To whom were members of the administrative- supervisory organization responsible? 4. What factors were responsible for the establish ment of the supervisory services in the selected school districts? 5. To what extent was the supervisory organization understood by the superintendent and his assistants, by teachers, by supervisors, and by principals? 6.« How were relationships among members of the supervisory personnel established and maintained? 7. To what extent did the supervisory organization make possible the attainment of the instructional goals of the district? 80 To whom were teachers responsible for the re sults of instruction in regular and special subjects according to the views of administrative, special and teaching personnel? 9. What position in the district was responsible for the coordination of the supervisory program? 10. What were the major strengths and most promising features of the supervisory organizations studied? 11. What were the desirable modifications of the supervisory organizations, according to the opinions of administrative, supervisory, special and teaching per sonnel? 12. What was the superintendent's role in strength ening the supervisory organization? 13. What criteria for supervisory organizations in unified school districts may be derived from a synthesis of existing practice, opinions of respondent educators, and recommendations given in the professional literature? Basic assumptionso The assumption was made that the answers to these questions could result in a better under standing and insight into the complex problems of personnel and organization involved in the supervision of instruc tion. Moreover, it was expected that the information gained from answers to these and related questions might well provide clues to the strengths and shortcomings of certain arrangements of supervisory services which would be valuable to school officials faced with the ever-present problem of developing an effective organization of services for their districts. II. IMPORTANCE OF THE STUDY The study was considered especially important for a number of reasons. (1) Organization is a universal means of accomplishing any form of endeavor. (2) The importance to instruction of effective supervision has long been an accepted principle. (3) The organization for effective supervisory services continues to be a real challenge to public school administrators. (4) Teachers need and want some form of supervisory service that will be truly help ful. (5) The team approach to instruction demands well- coordinated teacher aids which must be provided by the administration• Importance of supervisory services„ Spears touched upon the significant role of school supervision in the total school program when he wrote: Of all the responsibilities of school operation, instructional supervision stands out as the one most discussed, yet least understood. In spite of the success that has been achieved, the administrative waterfront of American education is littered with the debris of supervisory ventures that failed to live out the storm, failed to reach the needs of classroom instruction. Some were stern and austere craft that were abandoned as unfit for the humanitarian purposes of modem supervision. Some were properly planned but neglected by their navigators. Of all the responsibilities of school operation, supervision stands out as the one most in need of clarification. There is no greater challenge in the study of American education. It is an interesting period to consider the subject, for so many different things are happening and so many issues relative to supervisory practice have arisen. (28:1) Since supervision of instruction is an integral part of the modern public school program, the organization of a district for providing such an aid becomes a major concern to teachers as well as to administrators. No one pattern of supervisory services will meet the needs of all dis tricts. However, districts are attempting to meet their needs with a great variety of supervisory organizations in 6 order to render maximum service to teachers, in an attempt to render effective service to all children and youth of the community. Writing on the need for research in the area of supervision in Monroe's Encyclopedia of Educational Research. Barr stressed the urgent need for more precise use of basic terms: To select, train, and guide more effectively the various sorts of supervisors one needs to know not only the responsibilities associated with these offi cials but also the qualities, competencies, and abilities necessary for the efficient discharge of these responsibilities. Terms such as "leadership'1 and "Democracy" as applied to school administration, and "efficiency" as applied to various supervisors all need more precise definition. Turning from functions, persons, and principles, one needs to know more about what constitutes the elements and aspects of a good supervisory program, and by what criteria their effectiveness may be evaluated. We need to determine not only the general effectiveness of the program, but the effectiveness of important components, such as the teaching personnel, the cur riculum, the socio-physical setting for learning, and other matters limiting and facilitating pupil growth. (22:1373) To review and analyze the promising practices that are evolving in supervisory organizations may be reasonably considered to be an important, and, indeed, an essential consideration in educational research. Although any super visory organization must remain secondary to the instruc tional program being carried on within the district, efficient and professionally acceptable patterns of organ ization are mandatory to meet modem educational needs. 7 The challenge to American education0 The sudden spotlight which international developments have recently turned on the schools' accomplishments, especially in the subjects of mathematics and science, has indeed revealed some areas of inadequacy. For example, at no time in modem educational history was there such evidence of lack of supervisory help to teachers in a field in which most elementary teachers usually feel considerable inferiority— science education. This very fact probably demonstrated as did no other the lack of science and mathematics background of many elementary teachers. Administrators were faced with the problem of producing crash programs of science training for teachers; in fact, some districts increased the time allotments for science markedly. But one void seemed to prevail quite universally among school districts in California— there were no science consultants or super visors on the staffs of the great majority of unified school districts. The building principal, as a generalist, could fill the leadership role only when his background was adequate to the task. Help from the office of the county superintendent of schools was available but lacking in sufficient numbers to make any serious inroad into the problem of in-service growth for teachers and administra tors. The problem was critical and the end result was not pleasant to contemplate. Even at the secondary level the shortage of teachers in the fields of science and mathematics was a perplexing concern to personnel directors and principals everywhere. To date, the problem is far from being resolved; much needs to be done to determine the areas most in need of emphasis. Therefore, a critical review of services now provided and those in short supply is timely, if not over due. The challenge of unification. In no other pattern of school organization are there as many recognized oppor tunities for intelligent, uniform and thorough planning of educational experiences as is potentially possible in a unified school system. A course of study in language arts, for example, carefully planned through all the range of grades, is recognized to be definitely superior to one which is separately organized for elementary, junior and senior high school students. Too, the continuity of plan ning and execution of a program is even more effective when the supervision and administration of the program cover the total grade range, thus assuring the greatest possible effectiveness of instruction. These are only a few of the major arguments for unification but the question may well be raised: Is this increase of effectiveness true of indi vidual school districts, even though they are unified? The supervisory organization could well hold the key to the degree of success achieved by the instructional program. It is not inconceivable that this success could be due not so much to the organization which, after all, is a means to expedite tasks to be accomplished, but rather to the personnel constituting the organization. The public has been led to believe that it has a right to expect more of a school district organized as a unified system. Communities have been convinced that much is to be gained from unification and have been willing to accept the responsibilities of planning the instructional program throughout the first twelve or fourteen grades of a pupil's life--and to pay for it. However, much of the success of unification depends upon the degree to which school administrators accept the challenge and responsi bilities of unification. The adding of an elementary division to an existing secondary district or the addition of high school and junior college education to an already established elementary system, must be looked upon as merely the beginning of unification. There is nothing magic or automatic about a unified system that guarantees, per se, a more efficient, effective or superior school system. Such an organizational pattern merely provides the potential for a superior educational program for pupils. The means by which boards of education and superin tendents of schools meet the challenge of unification depends largely on the community's attitude toward the 10 importance of education and its ability and willingness to finance the program of instruction. By far the most ex pensive budgetary item in any school system, regardless of organizational pattern, is that for salaries of the pro fessional personnel. There can be little question of the need for teachers to carry on the front-line of instruc tion. The only question that must be settled is the determination of what the pupil-teacher ratio is to be. When it comes to the determination of the number and classification of administrative, supervisory and special personnel, the problem is not simple, for the ratio of these professional persons to teachers and pupils could well make the difference between a well-coordinated and effective unified school system and one dangling at loose ends with little direction other than what can be given by its chief administrator, the superintendent of schools. It is up to the governing board of education through the professional leadership of its superintendent to provide supervisory direction that can fully realize the poten tialities of unification; without adequate provision of such direction the district may be unified in name only with each segment operating as an independent unit with little, if any, continuity of purpose or direction. It would follow, then, that the organization of supervision in a unified school system, both from an administrative and educational point of view, is a vital 11 and Indispensable consideration when unification is con templated or its improvement is considered. Budgets must reflect appropriate expenditures for professionally quali fied personnel necessary to the full realization of unification potentials. To deny teachers the services of specialists in various areas of instruction could well result in diminished educational opportunities for pupils. To employ specialists with responsibility and authority only in segmented portions of the instructional program would be to forfeit an important advantage of unification. Therefore, the employment of educational supervisory specialists and their utilization throughout all levels of instruction are important processes in the operation of unified school districts of California. III. SCOPE AND LIMITATIONS OF THE STUDY Scope of the study. The preliminary study was con cerned with the supervisory organizations that existed in the unified school districts of California which had 1957- 58 enrollments of 900 and over. The study involved: (1) the extent of administrative, supervisory, special teachers and special services personnel maintained in the unified school districts; (2) the length of employment each year for the positions maintained; (3) the individual to whom each person holding the position was responsible; (4) fac tors which affected the establishment of the supervisory 12 organization in the district; (5) the extent to which the supervisory organization in the district was understood by teachers, supervisors, principals and the superintendents and their assistants; (6) ways in which relationships be tween teachers and supervisors, between principals and supervisors, and among supervisory personnel were estab lished and maintained; (7) the degree to which the super visory organization contributed to the attainment of the educational goals of the district; (8) the individual to whom teachers were responsible for the results of instruc tion in both regular and special subjects; (9) the position which carried the responsibility of coordinating supervi sion in the district; (10) the major strengths and most promising features of the district's supervisory organiza tion; (11) desirable modifications which could strengthen the supervisory organization; and (12) ways in which the superintendent could enable the organization to render more efficient supervisory services. A follow-up phase of the investigation consisted of an intensive study of six districts in an effort to refine and augment a tentative list of criteria for supervisory organization. The follow-up districts were selected on evidence of interest in organization for supervision, will ingness to participate, and existence of defined patterns of supervisory organization in the district. The follow-up study was made through personal contact, utilizing two 13 questionnaires. One questionnaire was intended to obtain data from classroom teachers; the second was used to obtain information from administrative and special personnel, in cluding supervisors. Some parts of the two survey instru ments were identical, some parts were different, while some items were similar but not identical. Delimitation of the study. The study was restricted to the state of California and to those districts that (1) were unified in organizational patterns; (2) had an enroll ment of 900 or more in October of 1957 (exclusive of San Diego, San Francisco, Long Beach and Oakland). No attempt was made to include districts outside the state of Cali fornia or any but unified school districts. The geograph ical distribution was determined by the organizational pattern and size of the district unit. No attempt was made to determine reasons why districts chose the unification pattern of organization or to compare unified and non unified school districts with respect to supervisory services employed. III. DEFINITIONS OF TERMS USED In this study, the term "administrative personnel" referred to individuals vested with authority and respon sibility for certain functions and personnel. Administra tive personnel included persons with both line and staff 14 functions. By "articulation1' was meant the close working rela tionships established between various segments of the school program; as between elementary and junior high school or between junior high school and senior high school. The terms "consultant," "specialist" and "super visor," as used in this study, were considered to be synonymous and the three terms were used interchangeably. Consultants, supervisors or specialists were defined as personnel employed in a staff relationship to aid teachers and principals with the improvement of instruction and without administrative functions or responsibilities to perform as a part of the assignment in the school district. As used in this study, "criteria" referred to state ments of principles to be used as standards for measuring or evaluating degree of excellence. The term "general study" alluded to the total popu lation of districts included in the investigation, while the term "follow-up study" referred to a selected few dis tricts which were studied in a separate intensive analysis. For the purpose of this study, "immediate superior" denoted an individual who had direct line authority over another individual as shown by an organizational chart or described in a manual of responsibilities and duties. The term "resource personnel" referred to 15 individuals already in the school district as part of the regular staff and to individuals outside the district employed in a specific in-service capacity for the educa tion of professional personnel on the job. The "special personnel" included in this study consisted of nurses, psychologists, consultants, counsel ors, attendance workers and similar professional workers. Special teachers for remedial reading and speech therapists were also included in the category of special personnel. "Supervisory plans" referred to written, formalized long-range outlines of the major activities for the im provement of instruction. Throughout the study, the term "supervisory ser vices" should be interpreted as aids provided by school districts for the improvement of classroom instruction. The aids were offered within the concept of high-level professional personnel acting as a team rendering needed and wanted services to classroom teachers. School systems in California administered by a single administration under the direction of one board of education, and including grades kindergarten through twelve or fourteen, were referred to as "unified school districts" in the study. By "vertical committees" was meant personnel repre senting several grade levels or subject areas in groups dealing with matters of curriculum or other policy 16 formation. By the term "instructional goals" was meant the pre scribed objectives for instructional achievement which a school district had established for itself. The instruc tional goals or objectives may be in formal, written form or may be broad understandings in the judgments of the professional staff closely associated with the program of instruction. In discussing various groups of people in the school district organization, "line personnel" included individu als involved in direct administrative positions who were charged with the authority to make and execute decisions within established policies. On the other hand, "staff personnel" were those individuals who performed advisory functions and carried no authority of an administrative nature. The systematic arrangement of personnel in a sche matic diagram showing staff relationships was referred to as an "organizational chart" in the investigation. "Organizational patterns" referred to the arrange ment of personnel on an organizational chart that was peculiar to a specific district. As used in this study, "regular subjects" referred to such areas of instruction as mathematics, history, reading and English; while "special subjects" included areas of instruction such as music, art, physical education, 17 home-making and industrial arts. IV. ORGANIZATION OF THE REMAINDER OF THE STUDY The present chapter has outlined the purpose of the investigation and the importance of the study, has listed questions to be answered, has stated the scope and delimi tation of the study, and has defined the terms used. Chapter II includes the procedure, a review of the professional literature regarding supervision, and a dis cussion of types of supervisory organizations. Also, a description of related research studies and the limitations of previous studies in relation to this investigation are presented. Chapter III describes the total responses to the general survey questionnaire sent to selected unified school districts in California. The positions of respondents are classified, their immediate superiors identified, and their length of employment determined. Factors affecting organi zation, staff relationships, coordination of supervision, influence of the superintendent, and staff ratios are also included in Chapter III. Chapter IV presents the results of the follow-up study in six unified school districts. Included among the topics covered in the follow-up study are the teachers' responsibility for regular and special subjects, their 18 understanding of the supervisory organization, their evalu ation of teaching effectiveness, their degree of agreement on methods of instruction, their judgments on the coordina tion of supervision, on the adequacy of supervisory time, and on ways of strengthening the supervisory organization. Chapter V presents the summary, conclusions and recommendations evolved from the study. It also develops a basic list of criteria for supervisory organizations as synthesized from the professional literature and the find ings of the investigation. Suggestions for further research relating to the field of supervisory organizations in unified school districts are also presented in this chapter. CHAPTER II REVIEW OF RELATED LITERATURE The problem of the study was discussed in Chapter I. The present chapter contains: (1) a review of the litera ture as it pertains to the organization of supervisory services; (2) the contribution of the literature to the development and meaning of supervision; (3) the contribu tion of the literature as to the type of organization for supervision. In order to assure an accurate listing of related studies, a search was made of all library facilities at the University of Southern California. Doctoral dissertations in educational administration were checked to locate those related to the subject of the study. Dissertations in progress as listed in the Phi Delta Kappan were reviewed and the annual volumes of Doctoral Dissertations Accepted by American Universities were scrutinized. Bibliographies of related dissertations were used to augment the initial list developed from the card catalog. I. OVERVIEW OF THE GENERAL LITERATURE The overview of the pertinent literature on the organization of supervision contained in this section 19 20 covers three general areas: (1) related research studies; (2) textbooks and authoritative works on administration of supervision; and (3) articles in the professional period ical literature. Related research studies. Numerous research studies completed during the last three decades have shed light on the important phases of school administration dealing with means of rendering supervisory services to the teachers. Just thirty years ago (1929) McGinnis attempted to develop a guide so that school administrators could deter mine the number and kinds of positions which should be included in an effective administrative and supervisory organization, and the number of employees there should be in each position. Cities with populations between 20,000 and 50,000 formed the basis for the study. McGinnis found that it was not possible to set up reliable standards for administrative and supervisory positions for certain sizes of cities. He did conclude, however: Educational surveys show a tendency in practice that restricts the efficiency of school administration by failure of boards of education to provide the superin tendent of schools with a sufficient variety and number of assistants with clearly defined duties so as to relieve the superintendent of administrative details. Surveys show also that the lack of an adequate organi zation results in failure to attain the quality and quantity of educational outcomes which should accrue from present educational offerings. (65:3) As a result of his investigation, McGinnis arrived at the following conclusions: 21 1. Since several different factors determine the admin istrative and supervisory organizations of city school systems and these factors vary in number and in strength among the cities, we cannot conclude that a particular, detailed chart will represent an organization suitable for several cities of the same size. 2. Certain definite principles of organization apply to proper organization for all city school systems, and these principles are the principles of relation ships „ 3. Many school system organizations have been formed without the application of these principles. 4. Organizational diagrams of a number of cities in the study will serve as patterns for organizations in any city of 20,000 to 50,000 population, and will serve as bases for comparison for the purpose of improving the local city school system organizations. 5. Not standardization, but soundness of organization, should result from the use of these organization charts as patterns. (65:100) In another study also reported in 1929, Melby con ducted an inventory of organizational and administrative practices in cities of from 10,000 to 20,000 population. He evaluated the practices in terms of the judgments of supervisory officers, teachers and educational specialists. Pointing to the differences in judgment and philosophy regarding the organization of supervision, Melby declared: It seems significant, in relation to the problem of the special subjects, that there should appear as much disagreement among the various groups as to the most desirable procedure for teaching and supervision. Cer tainly in terms of these judgments no plan is estab lished as a necessary one or as the only practical one. Fairly substantial numbers of competent authorities can be mustered in support of any of the plans. Certainly any tendency shown in the judgments is in the direction of giving the classroom teacher larger responsibility and better training for the so-called special subjects. 22 On the other hand, fairly substantial numbers believe that such subjects should be taught entirely by highly- trained special teachers. The practice which is in widest use at the present time, that of providing ex pert supervision for teachers with only limited train ing, seems to receive the least support from the members of the various groups. Specialists are in disagreement among themselves, but in whatever respects they do agree they take issue with current practice. (66:140) Stressing the importance of recognizing the needs and interests of teachers, and of differentiating between general and special supervisors, Melby wrote: In so far as teachers1 judgments are available in this study, they indicate that supervisors have at their disposal a large number of activities and devices which are acceptable to teachers. Particularly do teachers approve of activities which are cooperative in nature and which are designed to encourage self- improvement and provide specific training. Judged by the reports of supervisors and teachers alike, a great many of these activities are little used. Supervision, as provided by principals and general supervisors, seems to be largely a fact-finding process while that furnished by special supervisors is a detailed demon stration procedure. If teachers and specialists have correctly evaluated the activities in the inventory, only small beginnings have been made toward providing teachers with the supervisory assistance which they feel would be most helpful. (66:136) In his conclusions, Melby .stated, as did McGinnis, that no plan of organization could meet the needs of all school systems of like size, stating: It must be admitted that the plan of supervisory organization adopted for any school system will depend upon those factors of school organization, teacher training, and educational objectives which obtain in that system. These factors are dynamic rather than static. It is, therefore, to be expected that constant modifications must be in the organizations charged with the responsibility for improvement of teaching, as well as in the activities which these organizations carry on. (66:141) 23 Brink in 1930 conducted a study in cities of 25,000 to 1,000,000 population to determine the practices of superintendents in coordinating activities of supervisors, as well as the practices of superintendents in providing direct and personal supervision. He attempted to evaluate the reported practices on the basis of the collective judg ments of experts in the fields of supervision and adminis tration o Brink observed, with respect to the problem of this investigation: One of the difficult problems confronting the city school superintendent is the determination of the most economical and effective type of supervisory organiza tion. Little experimental data are available to guide the superintendent in this respect. For example, little is tnown concerning the number of supervisors that should be employed in cities of various sizes, the proportion of time that they should devote to supervi sion, and the relationships that should be established among them. While it is not the purpose of this dis cussion to attempt a solution for these problems, an effort was made to secure information concerning cur rent practices in dealing with them. (58:9) Brink touched upon a problem of specific interest to the present investigation, the role of the principal in supervision: Considerable discrepancy exists between current educational theory and practice as to the responsibili ties which should be attached to the position of the principalship in supervision. The tendency in recent years has been to emphasize the responsibility of the principal in the field of supervision. Many special ists now believe that with the increased training and experience of principals, they should be made com pletely responsible for the instructional system and results in their buildings. (58:98) One of Brink's observations was somewhat similar to 24 those made in the two studies just mentioned: In conclusion, it may be said that any effective plan of supervision must proceed upon the basis of expert leadership. In the majority of school systems, it would seem that the superintendent of schools is the official who can best assume this responsibility. If this responsibility is to be discharged effectively, techniques must be developed. Furthermore, in the adoption of a plan for the direction and coordination of the activities of supervisors, consideration must be given to the situations that such factors as the type of school organization, the training and experi ence of supervisors and teachers, and the amount of time which supervisors devote to supervision will affect the plan adopted. It is doubtful whether a plan could be suggested which would be adequate in all cases. Modifications will need to be made to meet the needs of each particular community. (58:102) There appears to be general agreement, then, that any one plan of organization for supervision would not be universally applicable to all school districts of a similar size. The multiplicity of factors in any school system would make the imposition of one organizational plan on a community highly objectionable, regardless of how success ful such a plan had been in a similar community. However, in order to provide more equality of opportunity for chil dren and youth through the growth and development of their teachers, some guideline of a rather specific and practical nature should be useful. This reasoning was also in the minds of other investigators who sought to determine whether basic principles of organization could be formu lated and, if so, how they could be utilized. In 1934 Gilmore studied public education in city school systems to determine whether there were fundamental 25 principles upon which public school systems should be organized for the efficient administration of public edu cation. In his findings, Gilmore stated: A. Public school systems are not now generally organ ized for administration in accordance with funda mental principles of organization. B. Fundamental principles of organization are well established which, if applied, will result in greater efficiency in administration and in more realization of objectives. C. Public school systems should be organized for admin istration upon the bases of these fundamental principles in order that the greatest degree of efficiency and economy shall be realized and the needs of the children shall be adequately met. (86:118) Gilmore arrived at several conclusions which touch upon this investigation, namely: 1. The executive control of a city school system should be vested in a single, professionally-trained execu tive who is responsible directly to the board of general control for the efficient administration of all agencies of the school system, both business and educational. 2. The personnel organization of the school system should be of the line-and-staff type, or some modi fication of this type, preserving the unity of executive control while securing expert advice and service where and when needed. (86:119) No specific mention was made by Gilmore of any organization for supervision of instruction, although a review of types of administrative organization was given. Stoops (97), in 1941, surveyed the organization and administration of certain major supervisory services at the secondary school level. He used cities throughout the 26 nation with populations of 100,000 and over. Stoops con sidered a number of different organizational plans for supervision, including (1) supervisory services adminis tered by line officers; (2) separate division of curriculum and supervision in a line-and-staff organization; (3) divi sion of curriculum and supervision combined in a line-and- staff organization; and (4) divisions of curriculum and supervision included in, or coordinated under, a department of instruction in a line-and-staff organization. In Plan IV, Stoops described in detail a plan he recommended. He placed the principals and supervisory personnel under an assistant superintendent in charge of instruction. His suggested principles of organization which were employed as part of the compilation of the initial list of criteria for supervisory organizations were of great value to the present study. Stoops recommended the following principles regarding the organization of supervisory personnel: 1. That the divisions of curriculum and supervision be combined into, or coordinated under, a department of instruction with some type or modification of line-and-staff organization. 2. That superintendents, principals and vice principals be classified as executive or line officers and be assigned both administrative and supervisory duties. 3. That supervisors and curriculum workers be classi fied as advisory or staff officers and be assigned supervisory (as distinguished from administrative) duties only. 4. That line officers— superintendents, principals and 27 vice principals— make classroom visits at their convenience while encouraging visitation requests from the teacher. 5. That staff officers— supervisors and curriculum workers— make classroom visits preferably and almost exclusively upon call of the teacher or the princi pal. 6. That administrative rating of teachers be done by line or executive officers only. 7. That line or executive officers be linked with responsibility relationships descending from the superintendent through the principal and vice prin cipal to the teacher. 8. That staff officers have responsibility relation ships with the superintendent only (preferably through an assistant superintendent or director) and have advisory relationships with all other super visory personnel. 9. That further research be conducted to determine the proper classification, duties, and relationships for department heads. (97:269) Stoops touched upon a number of phases relating to organi zation similar to those included in this investigation. His emphasis, however, was on supervisory services at the secondary level only and involved only very large cities. Moreover, Stoops showed concern for the role and relation ships for department heads in secondary schools, an area in which further research is recommended in this investi gation • Riley in 1942 made a comparative investigation of the supervisory programs in rural elementary schools in California. He developed twelve criteria of supervision which pertained more to the characteristics of a good 28 supervisor rather than to the supervisory organization. They were helpful in this study and are reproduced below for their background and implications: 1. Does the supervisor exercise leadership in securing the cooperation of many interested persons in many different types of activities? 2. Is there long-time planning of supervisory activi ties and the improvement of in-service training? 3. Does the supervisor write and circulate well- organized supervisory bulletins? 4. Does the supervisor write brief analytical bibliog raphies and reviews of recent books and periodicals? 5. Does the supervisor objectively analyze observed teaching procedure, and organize intelligent crit ical discussions thereof? 6. Does the supervisor demonstrate good teaching pro cedures in terms of methods and techniques? 7. Does the supervisor carry on adequate evaluation programs ? 8. Is there a plan for carrying on research in curric ulum construction and revision? 9. Does the supervisor organize and direct conferences and meetings in such a way as to accomplish definite purposes? 10. Does the supervisor develop teacher morale and pro fessional spirit? 11. Does the supervisor keep up with the modern develop ment in education? 12. Does the supervisor speak clearly and easily before lay and professional audiences? (96:31) In 1947 Lubera (90) made a study of intermediary school officers in fifty-seven large city school systems. He studied the functions of the positions and traced their 29 development. He also attempted to determine the changes which had taken place in the nature and functions of the positions since the positions had been established. He further examined and evaluated the responsibilities and authority of the positions as recommended for the inter mediary officers in surveys of the school system. His concern for relationships and responsibilities touched on an area of study in this investigation. Ensz (84) in 1949 conducted a study to determine the source of educational leadership in California school districts. The purpose of the study was to determine sources of leadership in California school districts in 1948-49. One major question he attempted to answer related to the organizational level which was responsible for initiating leadership in the promotion of described prac tices in twelve selected areas of instruction, such as basic skills, pupil abilities, and home, civic and voca tional competence. School superintendents and principals were requested to indicate the source of educational lead ership in the twelve selected areas of instruction. Ensz found that the school superintendents thought that they were the major source of educational leadership, whereas the school principals thought that they were the primary source. Teacher groups were found to be the second most frequent source of leadership. Supervisors initiated lead ership only one half as often as did teacher groups. Large 30 school districts were inclined to attribute leadership to the assistant superintendent more frequently and to the office of the county superintendent of schools less fre quently than did the leaders of smaller districts. Among Ensz's recommendations was the provision of greater flexibility in the relationships and responsibili ties of the school personnel, so as to permit wider diffu sion of leadership on every level of the school organiza tion (84:25). No reference was made to the supervisory organization or its role in promoting instructional lead ership . A study by Doss (82) in 1951 was conducted to ascer tain the tendencies toward centralized and decentralized control of educational administration which had developed in California between 1900 and 1950. The study was divided into five parts, one of which dealt with school district organization. A recommendation stated that, as districts became unified and large enough to employ experts in administrating every phase of the local educational pro gram, the state should delegate authority to local govern ing boards to provide many of the services currently being provided by the office of the county superintendent of schools. Johnson (89) in 1952 attempted to determine the principles of internal organization that had been proposed and established, and those which could be applied to public 31 school administration. He compiled a list of ninety-nine principles of internal organization that emphasized the total organizational pattern of administration rather than the supervisory phase developed in this investigation. Johnson recommended a "circular" structure of internal organization, with the child at the center of a wheel whose rim was divided by such areas as guidance, curriculum coordination, bookkeeping and administration. Johnson stated: This recommended form of structure for internal organization is based upon the tenet that any problem in social engineering should be solved by the inte grated effort of all those in the group according to their functions and ability. The chief difference between this and other forms of group endeavor is that the need or an idea would initiate action rather than the arbitrary decision of a person usually called a leader. Leadership may be exercised in varying degrees by different members of the group and this actually occurs in any social structure. A leader in a line- and-staff type of organization can and often does exert real democratic leadership but, for whatever it may be worth, a circular form of structure,with the child at the center and the rim representing the entire educa tional program, stands as a recommendation resulting from this study. (89:127) Freese (85) in 1955 studied the position of assist ant superintendent in charge of instruction and developed criteria for this position. He made some reference to the total organizational pattern in which the assistant super intendent operated. His conclusions included the follow ing: 1. This is not a regional position, but a national one. 2. The position will continue to spread rapidly to 32 other districts. 3. The creation of this position has been largely spontaneous and indigenous, rather than an effort to conform. 4. In relation to this position, the Far West and the Southwest appear to be the most forward looking regions in the country. 5. The most rapid growth of the position in the near future is likely to be found in cities of less than 100,000 population. 6. This position is not likely to spread rapidly in districts with populations under 15,000. 7. This position does not represent a highly uniform pattern that has been copied meticulously by dis trict after district. 8. The design for this position needs to be somewhat different in districts of different sizes. 9. The size of the district tends to influence the nature of the individual position more than does the geographic location. 10. This position is organizationally sound. (85:305) Among Freese's thirty-seven recommendations, the following had direct bearing on this investigation: 1. That in each school district with a total population of 20,000 or more persons there be included on the superintendent's staff an administrative officer responsible for all the instructional functions at all grade levels in the district. 2. That the duties and responsibilities of this posi tion be clearly defined in writing. 3. That the person filling this position be directly responsible to the superintendent of schools. 4. That this position, in the main, be a line position. 5. That this position bear the same class title as those positions responsible for administration and business affairs. 33 6. That principals (and deans or directors of junior colleges) be directly responsible to the person filling this position on instructional matters. 7. That instructional supervisors, consultants, and directors be directly responsible to the person filling this position. (85:308) In discussing the implications of his study for further research, Freese came close to touching upon the scope of this investigation when he said work was needed for: A study of what assistant superintendents in charge of instruction feel would be an ideal program for their divisions in terms of organization, assignment of functions, staff, and budget. (85:317) Johnson (83) in 1955 developed criteria for an evaluation of the supervisory program in Alton, Illinois. The criteria were developed from a frequency tabulation showing the opinions of authors quoted in the study and the opinions of 444 participants as expressed on a ques tionnaire circulated according to the normative survey plan. Eight criteria were developed from the study: 1. Preparation, willingness, and activities of the supervisor. 2. Preparation, willingness, and activities of the classroom teacher. 3. Knowledge of the building principal concerning supervision. 4. Definition and explanation of objectives, princi ples, and policies of the supervisory program. 5. Educational bulletins and other aids to teaching. 6. Teaching beyond the fundamental skills, i.e., developing experiences that will provide citizenship training and encourage students to accept responsi bility. 34 7. Flexible framework of the supervisory program which provides for educational planning, individual dif ferences, and the infiltration of new ideas. 8. Teacher-principal-supervisor cooperation in the total planning of the educational program. (83:257) Literature on administration and supervision. An intensive study was made of professional books that dealt with supervision and supervisory organizations. It was felt that the writings of authorities in the fields of administration and supervision would be helpful in search ing for clues and leads bearing on the planning of this investigation. Techniques used in the development of sur vey questionnaires, treatment of the data obtained, as well as principles of organization were all sought in an attempt to obtain the most direct approach to the solution of the questions raised in this study. There is a great deal of literature pertaining to the supervision of instruction but a noticeably limited amount pertaining to the organizational patterns for pro viding supervisory services. Nothing was found regarding supervisory organizations for unified districts except the professional surveys made under the direction of Dr. Irving R. Melbo of the University of Southern California. How ever, it was found difficult to distinguish between the terms "supervisory organization," "supervisory program" and "supervision" since these terms were sometimes used synon ymously in the literature. Throughout the professional 35 literature, the concern on the part of the writers for some form of supervisory organization was obvious. It was interesting to note that in Cubberley1s (11) monumental work on public education in the United States published in 1919, no mention was made of supervisory ser vices or organizations in the index or table of contents. One of the most helpful sources of background for this investigation was the Eighth Yearbook of the Depart ment of Superintendence published in 1931 (70). In the discussion of principles of organization, eight were pre sented: 1. Centralization of executive responsibility 2. Definition of lines of authority 3. Delegation of authority and responsibility 4. Definite assignment of duties 5. Facility for cooperation and coordination 6. Flexibility of operation 7. Integration of educational outcomes 8. Democracy of spirit and operation. (70:49) Describing the characteristics of a good supervisory plan, the Eighth Yearbook continued: The nature of supervisory plans and the coordination between the plans of various supervisors will, of course, differ with the size of the system and the organization of staff in effect in the given system. Whether the plan be that of a superintendent, a general supervisor, a special supervisor, or a building princi pal, it should possess the three following elements: 1. A set of clearly stated, definite objectives. 2. A clear-cut outline of the means, devices, and pro cedures to be utilized in the attainment of these ends. 3. A clear-cut outline of the criteria, checks, or tests to be applied to the results of supervision, 36 in order to determine the success or failure of the program. (70:88) Also in 1931 Alberty and Thayer (2) suggested the integration of supervision with other aspects of instruc tion. The Fourth Yearbook of the Department of Supervisors and Directors of Instruction was devoted to an evaluation of supervision. The following suggestions have some bear ing on the subject of this investigation: 1. If supervision is to be adequately evaluated, there must be better experimentation and a great deal more of it. 2. The supervisors and directors of instruction must realize that the final evaluation of supervision is a cooperative enterprise involving the superintend ents of schools, the principals of the different units of the school systems, and the teachers, as well as the supervisors. 3. If supervision is to be properly evaluated, more investigations involving creative supervision must be conducted. 4. If supervision is to be properly evaluated, those employed in supervisory capacities must be trained in experimental methods and in the use of experi mental procedures. (72:144) In 1940 Moehlman stated, "The staff may now include two assistant superintendents— one in charge of instruction or curriculum and research, and the other for non-instruc- tional activities" (21:157). In 1946 the Association for Supervision and Curricu lum Development published a significant contribution to the professional literature in the area of supervision. In a 37 study conducted in 1945 involving 260 communities through out the United States, the following problems were uncov ered: 1. Funds aren't always available. State superintend ents headed their list of handicaps facing supervi sion with "lack of funds to pay for adequate supervision services." 2. Theory and practice may be at odds. A considerable proportion of the supervisors and supervising prin cipals responding to the questionnaires felt that the second most serious problem in supervision is the failure of leaders to translate the educational philosophy to which they subscribe into meaningful school practice. 3. Another major handicap to supervision is confusion concerning supervisory duties. 4. Principals in both secondary and elementary schools felt that supervisors do not see educational prob lems realistically, and that they do not make suffi cient efforts to understand administrative problems and points of view. Many supervisors, on the other hand, felt that their services are not used to the best advantage by administrators. (69:36) Barr, Burton and Brueckner in 1947 presented a very comprehensive work on supervision in which principles of good supervision were developed. The authors presented eight principles of external organization (that is, the provision of machinery and personnel), as follows: 1. Authority resides in the situation, in its demands and needs, and in its resources. 2. Authority is derived by persons from the situation and is shared by all who participated in the study and planning for the situation and its solution. 3. Personal or legalistic authority is replaced by responsibility for educational leadership. Educa tional leadership is centered in the superintendent or any other person in a position ordinarily 38 designated as that of leader, such as a principal or department head, and so forth. 4. Educational leadership and responsibility, however, are shared by all school officials from school boards to teachers. 5. Leadership is exercised by securing the full par ticipation of all concerned, not merely in carrying out a policy set up by the leader, but in the very formulation of that policy in the first place, in the planning of its execution, in carrying it out, and in evaluating it. 6. The new concepts of authority and responsibility are made operable through group-determined rules, mechanisms, and procedures. 7. Responsibilities and duties of all administrative and supervisory officers are shared with one another and with all other members who of necessity perform duties which interrelate and overlap. 8. The democratic formulation of plans will allow widely for assumption of responsibility for getting things done, for exercising initiative, and for self-evaluation. (15:89) Barr, Burton and Brueckner also presented three principles of internal organization (that is, governing the operation of the machinery of supervision), as follows: 1. Supervision should be so organized that the fullest participation of all concerned, administrators, supervisors, principals, teachers, any other educa tion workers, pupils, parents, other community mem bers, is secured in all aspects of carrying on educational programs. 2. Supervisory organization must be flexible enough to adapt itself to the needs of each particular super visory teaching-learning situation as it arises; must provide for continuity within this flexible adaptation and readaptation. 3. Supervisory organization must provide for coordina tion and integration of educational outcomes. (5:89) 39 In 1950 Wiles developed at great length the use of group processes in the area of supervision, although he did not touch on the administrative organization for super vision. He did point out the problem of relationships, however, and the different approaches to discipline in the organization: As an official leader faces the responsibility of coordinating group activities, he is confronted with the task of securing and maintaining discipline. If the group is to exist, it must have discipline. It may be imposed by the group itself or by the leader. It may be discipline that the group establishes to carry out its purposes, or it may be discipline forced on the group by the official leader to achieve submis sion to his will and purposes. The leader must make a choice between leader-centered authoritarianism and group-centered democratic discipline. (30:187) In 1951 Reeder discussed the role of the superin tendent as the all-important educational leader in the district: The superintendent of schools is potentially the most important educational officer, perhaps the most important public officer, in the community. He deter mines, more than any other person, the efficiency of the school system. If he is well qualified for his position, he will often be able to cause an efficient school system to emerge in spite of many handicaps; he will bring about this result by his ability to educate the board of education, school employees, and the pub lic to his point of view. On the other hand, if he is not qualified, there is danger that the school system will mark time or even deteriorate. (25:68) Kyte in an extensive treatment of the work of the elementary principal written in 1952 developed a number of areas which had a direct relationship to this investiga tion. He presented seven principles of organization 40 affecting the school principal which were adapted and used herein as tentative criteria for supervisory organization. The principles as stated by Kyte were the following: 1. In a soundly organized school system, professional responsibility and authority are vested in the superintendent of schools as the responsible admin istrative and supervisory head of the system. 2. The superintendent of schools delegates clear-cut responsibilities to his assistants in terms of clearly defined functions, together with the author ity necessary to fulfill the responsibilities. 3. In a large school system requiring the services of assistant superintendents, these assistant super intendents are responsible to the superintendent of schools for their respective departments, acting through his authority. 4. The principal is the executive head of the school to which he is assigned and is directly responsible to the superintendent of schools. In a large school system the principal is directly responsible to the assistant superintendent in charge of instruction and, through him, to the superintendent. 5. The teacher is the executive of the instructional program in the classroom and is responsible to the principal for the results obtained and, through him, to the superintendent of schools. 6. All supervisory officers, other than the superin tendent of schools, the assistant superintendent in charge of instruction, and the principal, are tech nical advisers to the superintendent, the assistant superintendent in charge of instruction, the princi pal, and the teacher. 7. A H auxiliary agents essential to an efficient edu cational system are employed for the fundamental purpose of furthering the educational program of the school system. (18:4) Kyte also provided a diagram of organization in "a very large1 1 school system (see Figure 1). In explaining basic organization and the role of the superintendent, Kyte said: FIGURE 1 ORGANIZATION OF A LARGE CITY SCHOOL SYSTEM Skilled mechanics,• unskilled laborers - Central office employees Directors • Supervisors- Principals - The People Secretary Board of Education Superintendent of Schools Asst. Superintendent (Buildings and Grounds) Assistant Superintendent (Instruction) Assistant Superintendent (Finance and Supplies) School secretaries School nurses Teachers Custodians Pupils Assistants -P - Source: George C. Kyte, The Principal at Work (Boston: Ginn and Company, 1952), p. 7. 1 - 1 42 To all employees of the school system the superin tendent delegates the duties and responsibilities which they are capable of assuming. He assigns the principal to a position which is in the direct line of control of the educational program, thus placing him in a key position. The sound delegation of responsibilities to this officer rightly makes him directly accountable to the superintendent for the results attained in a school. For like reasons, the teacher is directly responsible to the principal and, through him, to the superintendent of schools. (18:5) In 1953 Bartky declared that the superintendent was responsible for making his school organization efficient, and gave five criteria for an efficient organization, as follows: A supervision organization is effective if 1. Its purposes are properly balanced. 2. Its purposes are understood by its members. 3. There are standards of performances which are recog nized and attainable. 4. Maximum use is made of the ability and creativeness of its membership. 5. The membership accepts the purposes and leadership of the organization. (7:193) In 1954 Grieder and Rosenstengel developed the con cept of proper vertical articulation in organizational patterns: It is still not uncommon for city school systems to employ assistant superintendents for elementary, secondary, and sometimes, vocational education. How ever, the designation of one officer for the whole field covering all grade levels is believed to be a better system for the articulation of educational expe rience, and the stimulation and facilitation of ver tical unity of purposes and objectives from the primary grades right up through secondary schools. It is also in accord with the modem practice of dividing 43 administrative responsibility on a functional basis. (15:175) The Kellogg Foundation in 1954 financed a project published by the Teachers College of Columbia University for the Cooperative Program in Educational Administration. Among the contributions of the report, several statements are pertinent to this study. Regarding the potential for teacher growth in relation to school administration, the report stated: A major object of a system of school administration in a free society should be the promotion of the growth of teachers as people. This can be achieved only by identifying the individual with the total enterprise so that he may have a feeling of accomplishment. Only so, too, can his full energies be released,, (63:19) The study stressed the value of teacher involvement in school management and the desirability of developing genu ine educational leadership: There is yet another compelling reason for abandon ing the authoritarian pattern of school administration. Every system should strive to make full use of the talents of the members of the entire teaching staff. Knowledge, wisdom, conscience, and creative powers are by no means confined to the superintendent's office. Practically every teacher possesses these qualities in some measure and, what is equally important, in a unique form. Genuine leadership, therefore, comes primarily not from the exercise of arbitrary power, even though sanctioned by law and custom, but from the ability to achieve consensus, or at least willing acceptance, by releasing and utilizing the creative energies of all concerned under a system of cooperative relationships and functioning. (63:19) Also in 1954, in one of the most comprehensive books published on supervision in this decade, Ayer touched upon a number of aspects related to this investigation. 44 However, the area which was considered of particular inter est was the morale of teachers in a school system or organ ization. As mentioned above, teacher involvement and the utilization of the creative potentials of all members of the staff are highly significant in any organization. Ayers presented twelve principles of morale building which should be considered for their importance as part of the total pattern of personnel organization. Teachers and all other members of the school organ ization should: 1. Have faith in the intrinsic importance of the work which they are doing and its contribution to the aims of the organization. 2. Have the right and opportunity to contribute their ideas to the improvement of the system as far as they are able and willing to do so. 3. Know what their responsibilities are. 4. Have sufficient confidence in the integrity and loyalty of co-workers and superior officers to con tribute to effective teamwork in the prosecution of the common task. 5. Feel that their best work will bring its just re ward, thus challenging them to give their best efforts to their daily tasks. 6. Be dealt with as human beings eager to find oppor tunities for self-realization. 7. Be given the opportunity to grow and to achieve promotion by recognition and achievement. 8. Be given assignment of work in which they have an opportunity to succeed. 9. Be consulted before decisions are made which affect the conditions under which they work. 10o Be conscious of professional leadership which 45 assists them in meeting new problems dealing with individual children or with community situations. 11. Be considerate of the personal desires and short comings of other members of the staff. 12. Always remember that in their hands lie the destiny of American youth and the future of American democ racy. (3:180) Rothlisberger defined morale convincingly in terms of the health of a cooperative system, stating: It is our thesis that what physical health is to a physical organism, morale is to a cooperative system. Lack of morale, like lack of health, cannot often be reduced to some one simple cause. Just as problems relating to health require a simple and useful way of thinking about the physical organism as a physico chemical system, so an understanding of problems relat ing to morale requires a simple and useful way of thinking about human beings in their associations with one another as a social system. (28:192) In 1954 Harl Douglass, writing on the administration of secondary schools, discussed the controversial problem of the place of department heads in the organizational pat tern of a school system. Of the department head as a supervisor, he observed: In many schools the principal still relies to some extent on department heads for teacher leadership within his school. In a considerable number of in stances, his reliance is not well-founded. The depart ment heads, in many cases, lack training, modern fundamental philosophy, time, or ingenuity for instruc tional leadership. Their principal contribution in many instances must be limited to managerial activities and to assisting the especially trained supervisor in working with the teachers in his particular department. Quite frequently the supervisor and the in-service projects of curriculum improvement and teacher develop ment cut across departments. Here the principal has the responsibility for bringing together department head and teachers of different departments and con tributing to the interdepartmental cooperation in such 46 matters. (12:114) Douglass went on to trace the development and status of the department head system, as follows: The use of department heads in administration grew to its maximum development in the twenties and thirties. Its weaknesses have, however, become in creasingly obvious. In the first place, department headships, in a great percentage of cases, came to be occupied by persons who arrived by the route of senior ity and who, often not qualified by training or person ality, frequently made little, if any, further educa tional growth. The headship was most frequently regarded as a permanent possession, to be relinquished only upon death or retirement. (12:31) Several references are made throughout this inves tigation to the department head system at the secondary level, a problem important to the internal arrangement of high school staff for supervision, and one which is today of concern to many administrators. In his book on human relations in school administra tion published in 1956, Griffiths deals with many aspects of authority and human relationships in organizations. Since the relationships among peers as well as between subordinates and superiors are so significant to this in vestigation, Griffiths' book is of special interest to this study of supervisory organization. Concerning the behavior of top administrators, for example, he had this to say: What happens to a man as he advances higher and higher on the scale of leadership in an organization? Does his behavior change? Do people regard him differ ently? These questions apply equally as well to the chief school administrator as to the head of a large business, industrial, or military organization. One of the first things which a newly appointed chief 47 school administrator learns when he steps into his job is that his relationships with the other members of the faculty undergo an abrupt change. If he attempts to maintain the relationship he had established before assuming his new position, he finds constant rebuff. When he walks into the men’s faculty room, for in stance, he notices that the topic of conversation also changes. Then, too, the duties of his position make demands on his time which preclude contacts with the faculty and his previous associates. As men rise in the hierarchy of authority, there is considerable evi dence that they become more and more removed from the human beings in their organization. (16:130) Also in 1956 the California Commission on Public School Administration published a report of the role and relations of state, intermediate, and local administrative units in the state system of public education. It pre sented a number of practices and weaknesses which make revision of the system desirable. Eight principles of organization were presented having a direct bearing on this investigation: 1. Education is a function of the state. 2. The state agency for public education, the inter mediate unit, and the local district share respon sibility for public education with unique functions for each to perform. 3. The state educational agency, under authority granted to it by the legislature, is the over-all policy-making body within the educational structure of the state for the leadership and coordination of a system of public education as legally organized. 4. The local district, governed by an elected lay board, is the local operating education unit with full responsibility for maintaining the minimum pro gram guaranteed by state and statutes and for initiating improvements beyond that minimum. 5. The intermediate unit is the coordinating and ser vice agency for the local districts of the 48 intermediate area; it also acts as an administrative and service extension of the state agency for the state system of public education. 6. Each administrative agency of the state system of education should utilize all resources to strengthen the administrative unit next closest to the people and should perform services for that unit when needed and requested by it. 7. The needs of local districts as the operating unit should determine the policies to be developed and the functions to be performed by state and inter mediate agencies. 8. Responsibility for all aspects of the state system of public education rests, by law, with the state educational agency through which related activities of other governmental agencies should channel. (81:56) Chief among the needs for further study mentioned by the Commission was one closely related to the purpose of this investigation. The first need was stated as being: A study of the factors, such as size, wealth, popu lation, authorization, etc., contributing to the ade quacy of the local district and the development of organizational function as defined and set forth in this report. (81:60) The conclusion of the Commission's report is highly sig nificant as administrators seek continuously to strengthen their local organizational patterns in relation to inter mediate and state organizations. The report concluded: Education is not a static affair nor can the state afford to let inflexibility impede the program or impair the administration of the schools. As society changes and as social, technological, scientific and economic developments emerge to affect it, the school must not only reflect the present basic status of society and meet its ongoing needs but must also offer leadership in providing continuity with the past, in interpreting the significant trends of the present, and in developing understanding of and judgment for 49 the foreseeable problems of the future. The organiza tion which facilitates such a task must not be hampered by narrow or traditional restrictions, must not grasp at security and tranquility in place of opportunity, must not set expediency above wisdom. (81:61) Periodical literature. Although the major portion of writings pertinent to this investigation consisted of unpublished and published research studies and textbooks in educational administration and supervision, a number of helpful articles were found in the periodical literature. The Readers1 Guide to Periodical Literature and the Educa tion Index were used to locate articles dealing with sub jects related to this investigation. One article by Ford presented four principles of good organization: 1. The organization should make it possible to defi nitely fix the responsibility for every activity. 2. There should be a definite statement of the respon sibilities of each position in the organization, in order that no necessary work may be neglected, and that individuals may know to whom they are responsi ble. 3. Duplication of authority should be avoided. 4. The organization should be adjustable to utilize special abilities. (42:86) These four principles were found to be as brief and at the same time as practical as any appearing in the professional literature. The importance of the principles became even more significant as the violations of these basic concepts were studied in specific school systems. If chief school 50 administrators would make a concerted effort to abide strictly by the four principles suggested by Ford, they could be well on the way toward a strong school supervisory organization in their districts. In an article on principles underlying the tech niques of supervision, Bradfield enumerated and described the following eight principles pertinent to this study: 1. Techniques of supervision should provide for demo cratic leadership; participation of the entire school personnel in the operation of the school. 2. Techniques of supervision should provide for group action; and group thinking; teachers grow as they think, plan, work together. 3. Techniques of supervision should provide for good human relations; understand the teachers' personal, out-of-school problems. 4. Techniques of supervision should provide for the teachers' continuous self-improvement. 5. Techniques of supervision should assist teachers in all phases of their work; pupil growth follows teacher-growth. 6. Techniques of supervision should be adapted to each teacher-learning situation; flexibility of tech niques is essential— no two teachers are alike. 7. Techniques of supervision should provide for improv ing the whole teaching-learning environment through a cooperative effort; help teachers improve environ ment under which they work better rather than changing their method or procedure. 8. Techniques of supervision should provide for varied individual and group procedures; choice of tech niques will depend on the situation, purpose of the supervision, the materials and devices available and conditions in which the teachers and supervisors work. (36:21) Bradfield's principles underlying good techniques of 51 supervision revealed that the outcome of satisfactory supervisory techniques could be partially due to the organizational pattern as well as the personnel making up that organization. Bradley and Murray made an interesting comparison between the school supervisor and a physician: The "modern” supervisor may be likened to the gen eral practitioner or the highly respected country doctor. They guarantee no cure; they are not perfect; they are only practicing. Whatever the problem, they cope with it to the best of their abilities, training and knowledge. They are usually deeply sympathetic, kind, and understanding. A program of instructional supervision will be successful if there has been and continues to be coop erative planning by all persons involved. A knowledge and understanding of supervisory services by all per sons concerned, and a willingness to work together, will produce the type of supervision capable of ful filling its primary purpose; assisting the administra tor and teacher to provide the best possible instruc tion for the children. (37:31) Shannon, in an article on ways of improving teach ers in service, stated that surveys have been made of opinions of teachers concerning the most beneficial super visory activities employed by their supervisors. Other surveys have been made of the estimates of supervisors concerning the relative desirability and practices they had employed. The estimates of specialists in the field of supervision were also sought. The first three activi ties that were agreed upon by all three groups as being of greatest help were: (1) visitation, conferences, and criticisms; (2) teachers' meetings; (3) demonstration 52 teaching. The items generally agreed upon by all three groups as being the least helpful were letters and bul letins (55:179). Katz, in a study of top executives, was led to the conclusion: As we go higher and higher in the administrative echelons, the number and frequency of personal con- , tacts decrease, and the need for human skill becomes proportionately, although probably not absolutely less. . . . The human skill of dealing with individuals then becomes subordinate to the conceptual skills of integrating group interests and activities into a coordinated whole. (47:37) Caswell, in an article on administrative provisions for curriculum development, stated: Every school system should be large enough to pro vide some specialized services in curriculum and instruction. Generally, if a system is so small that there is only one central office staff member in addi tion to the superintendent, this may well be a director of curriculum and instruction. (38:168) Spears, in an excellent article on supervision in transition, made note of the following trends: 1. Group study programs are in the ascendancy. Super visors and other staff leaders are spending more of their school day working with teachers in groups instead of limiting their leadership efforts to visiting teachers in their individual classrooms. 2. Group processes are becoming more popular among supervisors as they pool the talents and contribu tions of all those who make up the group. 3. Curriculum planning is now well accepted. 4. In-service education as a growth idea is the late bloomer in school administration's garden of in structional improvement. 5. The present emphasis in supervision is upon the 53 improvement of learning rather than merely upon improvement of instruction. 6. Supervisory leaders are highly conscious of the importance of good human relationships. There is a general tendency to de-emphasize levels of opera tion. As attested to by the printed proceedings of their conferences, supervisors want to be freed of authority over teachers and to be classified in the helping role. (56:368) In the same article, Spears pointed to a number of issues and conflicts which, he believed, should be reconciled by school administrators. Some of the issues and questions he raised were pertinent to this investigation since they pertained to staff relationships, professional in-service growth, and services rendered to teachers: 1. Is there conflict between the concept of school efficiency and democratic supervision? As school costs go up and administration must account fully to the public for its mounting investment, can instructional leaders always keep the good human relations they wish? 2. Can those in supervisory positions be freed from sharing with administration the responsibility for judging the effectiveness of teaching effort? As the expert in instructional matters, can the super visor be released from judging a teacher's work? 3. It is now common to tie in-service credits with salary increments, movement up the salary scale being dependent upon in-service credits. Does this reversal in supervisory policy assure actual growth or does it threaten the wholesome spirit upon which effective instructional leadership is so dependent? 4. To what extent does the ability of people to work together as a group represent a science in group mechanics that must be mastered by an individual leader? 5. As the supervisory concept is broadened, to what extent can school districts afford to add the miscellaneous staff services that are implied in 54 the ideal? 6. Is the school principal to be looked upon as a real instructional leader, or is his leadership threat ened by the miscellaneous special services being added to help teachers? 7. Are classrooms being neglected in the present tendency to assist teachers through in-service group activities? 8* Who is to measure the effectiveness of supervisory programs and supervisory efforts? Teaching effort is being judged continually, as is the work of the administratoro Is there a tendency to neglect to judge the effectiveness of the supervisory effort? 9. In the case of large staffs of supervisory workers, as in a large city or county, how can the coordina tion of effort be assured? Are teachers actually confused by the multiplicity of services and the overlapping of demands upon their time and energy? 10. Is there a place for rating sheets or efficiency reports to be used in judging the effectiveness of the teaching effort? 11. In endorsing cooperative planning as the true essence of teacher growth on the job, has supervi sion inadvertently forced teachers to give up free time that should be theirs? (56:369) The issues are as vital today to many school admin istrators as when Spears wrote them in 1954. The real professional task that must be accomplished is not the identification of problems as major educational issues. Rather, the school administrator must first make sure that in his own district objective and honest answers can be made, regardless of how many other issues may be pending, whether or not they are contained in the list suggested by Spears. II. THE DEVELOPMENT AND MEANING OF SUPERVISION 55 Many attempts have been made to clarify and define the nature and meaning of supervision. Most writers have stressed the cooperative element in defining supervision, especially in the last two decades when ’’ democratic" supervision has been the key concept expressed in much of the literature. To further indicate the philosophical difference between early and modern concepts of supervi sion, the term "supervisory services" has become a more descriptive term used in lieu of the connotations of the word "supervision." However, for the purpose of this study, both "supervision" and "supervisory services" are used synonymously with full recognition of and agreement with the newer terminology. Definition of supervision. Burton described super vision as "expert technical service primarily concerned with studying and bettering conditions which surround learning and pupil growth" (5:11). According to Wiles, supervision is a service activity that exists to help teachers do their jobs better (30:3). To supervise means to coordinate, stimulate and direct the growth of teachers (8:4). Briggs and Justman stated that supervision must be defined in terms of the purposes for which it is used, and suggest the following: 56 1. To help teachers see more clearly the real ends of education, and the special role of the school in working toward these ends. 2. To help teachers see more clearly the problems and needs of young people, and to help them provide as far as possible for these needs. 3. To provide effective leadership, in a democratic way, in promoting the professional improvement of the school and its activities, in fostering har monious and cooperative staff relations, in stimu lating professional in-service growth of teachers, and in bringing the school closer to the community. 4. To build strong group morale, and to unify teachers into an effective team, working with intelligent and appreciative cooperation to achieve the same general ends. 5. To ascertain the work for which each teacher is most suited, to assign him to such work, and to encourage him to develop further his capabilities in any promising direction. 6. To help teachers to develop greater competence in teaching. 7. To induct beginning teachers into the school and into the profession. 8. To evaluate the results of each teacher's efforts in terms of pupil growth toward approved ideals. 9. To assist teachers in diagnosing the learning difficulties of pupils and to help in planning effective remedial instruction. 10. To help interpret the school program to the com munity so that the public may understand and aid in the school's efforts. 11. To share with the public the problems of the school so as to get suggestions for their solution. 12. To protect teachers from unreasonable demands by the public on their time and energies, and from unwarranted criticism. (8:4) 57 Early organization of supervisory services. The establishment of schools in the New England colonies com pelled the selectmen of the towns to secure teachers of certain religious and moral qualifications. In 1709 com mittees of citizens were appointed in Boston to visit and inspect the school plant and equipment and to examine pupil achievement. Not for many years, however, was there mention in the historical record of inspecting teachers' methods, criticizing them, and advising teachers concern ing methods to be employed. The growth of schools, in both size and numbers, made necessary the employment of more teachers in each building so that it was necessary to designate a head teacher. The head teacher, in addition to her classroom assignment, was also made responsible for certain adminis trative and managerial duties. In 1837, Buffalo and Louisville provided for the establishment of educational functions under an executive. At first, the superintend ent of schools, even though he was the chief administrator, was often considered as the minor executive since members of the school board relinquished what had been both admin istrative and inspectorial responsibilities. By 1870 there were twenty-nine superintendents to carry on the function of chief administrator. About 1870, subjects such as music, drawing, manual training and home economics began to be included in the k 58 school curriculum. Since neither superintendent nor teacher was qualified to administer the program for the specialized areas, special teachers were given the task of teaching the "new subjects” to the children. The special- ists teaching in the new fields were typically designated as ”supervisors.” It was not until about 1900 that special supervision for the academic subjects and special subjects came into the educational scene. At that time the head teacher or principal became both the administrative head of the school and the supervisor responsible for all instruction in the building. By mid-century, many studies had been made of the supervisory activities of many differ ent school positions. Contrast between traditional and modern supervision. The professional literature is saturated with descriptions showing changes in concepts of supervision, from the in- spectional and autocratic to the democratic, cooperative approach for the improvement of instruction. Ayer gave an excellent portrayal of the difference between the old and the new in a history of the characteristics of each form of supervision as follows (3:22): 59 Autocratic Supervision 1. Authority stressed 2. Few leaders 3. Imposed from above 4. Teachers inspected and criticized 5. Based on stern management 6. Self-expression hampered 7. Supervisors dominant Democratic Supervision 1. Cooperation stressed 2. Many leaders 3. Derived from below 4. Teachers respected as equals 5. Based on human relations 6. Creativity encouraged 7. Teachers dominant Barr, Burton and Brueckner also delineated the major differences between traditional and modem concepts of supervision (5:13): Traditional Concept 1. Inspection 2. Teacher-focused Modern Concept 1. Study and analysis 2. Aim, material, method, teacher, pupil, and environment focused 3. Visitation and conference 3. Many diverse functions 4. Random and haphazard, or a meager, formal plan 5. Imposed and authoritarian 6. Usually one person 4. Definitely organized and planned 5. Derived and cooperative 6. Many persons The earlier organizations for rendering supervisory services provided for the inspection of teaching through classroom visitation. Suggestions and directives were usually imposed upon the teacher by some authority, not necessarily after consultation with other resource persons. By contrast, supervision in modem times has tended more and more to include an analysis of the total teaching and 60 learning process by means of a carefully planned program cooperatively developed and adapted to the needs of the situation. The need and desire for supervision. The assumption has been made that supervision, as a function of an organ ization designed for the purpose of carrying on supervisory services, is an essential aspect of educational endeavor. That this assumption is reasonable and correct has been affirmed by the results of numerous research studies that have definitely established the fact that teachers need and want good supervisory help. Periodically, opposition to providing supervisory personnel has developed, espe cially during periods of "economy moves" when the most obvious and dramatic budget cut is the elimination of salaries for supervisory personnel. The attitudes of some supervisors, who had given the impression that their posi tions were administrative as well as supervisory in nature, may have resulted in inviting the elimination of some needed supervisory services and personnel. Educators gen erally favor supervision as an essential and integral part of the educative process. Few laymen oppose supervision because they do not understand the purposes and functions of supervisory activities. Barr, Burton and Brueckner outlined six reasons why supervision is a necessary part of any general educational 61 program: 1. Supervision as expert service on the consultancy basis is an accepted principle in all difficult and complex human undertakings in any line of endeavor. 2c Education, particularly, is complex and intricate, and furthermore is carried on in minute divisions, classrooms, scattered through a community and over the nation. The great extension of educational opportunity particularly on the secondary level in creases the demands for technical assistance. Brief teacher tenure also complicates the situation. Supervision in the sense of leadership will con tribute to unity (not uniformity) of purpose and coordination of effort. 3. The academic and professional training of all levels of professional workers, despite excellent progress, is still absurdly low. Supervision will contribute to the growth of all. 4. The teaching load, particularly in high school, is so diverse, so heavy, and so unrelated to teachers' previous preparation, that technical assistance is necessary. 5. Education is developing so rapidly that educational workers in general could not possibly keep abreast of current developments. Supervisory services will bring to all analyses and discussions of research findings, new departures, creative suggestions. 6. Leadership and creative contribution may be found anywhere, it is increasingly realized. Supervisory leadership aids in discovering leadership and crea tive ability and in arranging opportunities for its expression. (5:36) There can be no question that, if supervision is a vital and integral part of an educational program, a pro vision must be made to make this service available. The organization through which supervisory services are pro vided, whether carried on by the building principal or by a complex team of specialists, must be clearly defined and 62 understood by all participants. How this is done and the various problems relating to a particular organizational pattern was of significant concern to this study. The value of supervision. There has been consider able research to determine the relative value of supervi sion and its influence on the educational outcome. The studies conducted in Greenwood City, Wisconsin, by Green field (43), in the Detroit public schools by Courtis and Barnes (39), in rural areas by Pittman (23), and in Michigan by a series of studies (76) all showed definite improvement to have occurred following the introduction of systematic programs of supervision. The conclusive evi dence offered seems to leave little doubt that planned supervision does, in effect, result in improved achievement on the part of pupils. Supervision has been strongly criticized by teachers on many occasions, but especially at times when the finan cial stresses may make the elimination of supervisory services a seemingly simple solution to budgetary problems. Teachers have been called upon to evaluate supervision and supervisory organization in an objective and highly profes sional manner, in a sincere attempt to improve the condi tions under which teachers work. Aside from criticism of the cost of supervision, criticism is usually directed at the undemocratic nature of the supervisory process, or the 63 fact that the teacher's initiative is repressed, he is inhibited emotionally, and his freedom of expression is suppressed. The lack of a well-planned program of super vision and the unavailability of trained personnel are other reasons why supervision is not always readily ac cepted by teachers. An extensive study by Reavis summarized the results of responses from 720 teachers in eight departments in thirty-three high schools. He reported that the percentage of teachers wanting various supervisory aids was as fol lows: Supervisory aid requested Percentage Opportunity to observe work of teachers 22 Assistance in diagnosis of defi ciencies of teaching and suggested remedies 19 Frequent personal conferences 14 Factual data regarding scientific experiments 10 Commendation for better than average work 10 Frequent demonstration of good teaching 8 Assistance in management of problem pupils 6 Others 13 In another study of the need for supervision re ported in the Third Yearbook of the Department of Supervisors and Directors of Instruction, 154 supervisory respondents stated that 1,682 teachers requested assistance during a semester according to the following frequency: Types of Supervisory Requests Frequency 315 Concerning desirable methods Advice concerning individual need and difficulties of pupils 271 Provision of materials of instruc tion, supplies and equipment 136 Help in the selection of materials of instruction, supplies and equipment 83 Diagnosis of teaching difficulties 68 Burton, writing in 1928 in the First Yearbook of the National Conference on Educational Method, stated: Supervision no longer has to argue its rights to exist. Despite sharp criticism heard from time to time, supervision is accepted as a necessary and funda mental part of any progressive educational program. Even the teaching body which often seems restive under supervision recognizes the necessity for supervision. There is evidence to show that teachers are enthusi astic supporters of supervision when supervision is effective and helpful. Nevertheless, any specific pro gram of supervision must justify itself; it must be productive of evidence justifying its existence and the money and time spent on it. (67:219) supervision (and the organization through which supervisory services are disseminated) truly beneficial and sincerely wanted. The supervisory organization and its services can never be any better than the personnel who constitute its There is a challenge to administration to make 65 professional staff. If the true value and potential of supervision is to be realized, serious professional con sideration must be given to establishing prjper working relationships, understanding job responsibilities, and the systematic arrangement of services to teachers. Teacher involvement in the evaluational and planning phases of supervisory services, especially when changes in organiza tion are contemplated, has become an increasingly accepted phase of democratic administration. Such involvement gives greater possibility of success and acceptance for whatever changes are made due to greater understandings and mutual respect resulting from professional cooperation. III. TYPES OF ORGANIZATION FOR SUPERVISION In order to carry out planned programs, any major educational activity as comprehensive as supervision must operate within some form of organizational arrangement. Therefore, the organization of personnel for administration and supervision has been a serious concern to administra tors upon whom have fallen the responsibilities of efficient operation of supervisory activities. The army and industry are perhaps the two major enterprises that have given a background of experience that has greatly influenced other institutions to develop organizations which facilitate the supervision of personnel in the interest of maximum effi ciency and increased production. 66 In actual practice, very few examples exist of "pure" types of supervisory organization. The Eighth Yearbook of the Department of Superintendence discussed three forms of supervisory organization: (a) the dualistic system; (b) the line-and-staff system; and (c) the coordi nate system (70:53). A fourth form, the functional type of organization, should also be included in any discussion of means for organizing personnel for administration and supervision. The dualistic system. According to the dualistic system of control, the teacher is responsible to both the principal of the school and the supervisor who visits the school. While the principal is placed in charge of the general operation of the building (such as supplies, pupil attendance, discipline and custodial services), the super visor has charge of the supervision of instruction in the subjects and grades. Under the dualistic system, the teacher is confronted with two authorities, and thus two allegiances, a situation which often results in frustra tions and confusion to the detriment of the educational program. The concept of supervision under the dualistic sys tem is that the responsibilities for improving instruction are external; this is in contrast to the concept that the responsibilities for the general operation of the school 67 plant are internal. Historically, the inclusion of such "special" sub jects as art, music, industrial arts and homemaking created a need for specialized knowledge that the principal usually did not possess. Outside supervisors were given the responsibility for directing the instruction in the special subject areas in lieu of the principal's inadequacies. In turn, the principal was responsible for the "regular" sub jects in the curriculum (such as reading, arithmetic, history and English). Responsibility for the supervision of some areas which were not definitely assigned, or over lapping activities, further confused the teacher. The functional system. The functional type of per sonnel organization is based on the functions or activity to be performed. This type of organization tends to diversify the services performed by personnel in the sys tem. As the organization becomes larger and more complex, the greater becomes the difficulty of exercising control and fixing responsibility. Kyte, in a discussion of the role of the school principal in a functional type of organ ization, said: Directly under the superintendent's leadership, the principal serves as the expert head of a school. As such, he is its chief executive, supervisor, coordi nator, and educational appraiser. Since his most important work is the improvement of teaching in the school, his dominant function is supervision. He makes his major contribution to the efficient growth of the pupils enrolled in the school when he devotes most of 68 his time, thought, and energy to the supervisory activities which aid the teachers in increasing their professional efficiency. With the best interests of the children and of the teachers uppermost in his mind, he also develops a sound organization of the school and its staff, administers the school and its educa tional program, serves as the professional leader of the personnel, maintains a constructive program of public relations, and evaluates scientifically his own work and that of all others in the school. (18:8) The line-and-staff system. A commonly recognized method of control in operations which are extensive enough to necessitate organization in some form is the line-and- staff arrangement. Used extensively in the armed forces, the line-and-staff plan has permeated almost all large organizations, including churches, department stores, school systems, banks, and the many institutions that make up the American social order. In school systems, the line officers include the superintendent, assistant or associate superintendents, principals and vice principals, and other designated heads of operating departments. All authority is developed from the superintendent in well-defined lines of authority. The line officers actually administer the school system within the limitations of the superintendent delegated authority. As the organization becomes larger and more complex, the pure line type of pattern becomes less feasible. The army, as well as business and government, found it neces sary to add a technical staff to aid in the efficient operation of the organization. The pure line type of 69 organization is seldom found in any complex operation except as a chief executive creates an autocratic situation in his organization by his own actions and philosophy. The staff officers in a school system consist of such personnel as librarians, psychologists, counselors and curriculum supervisors. Staff officers have no admin istrative authority over line officers or teachers. Staff personnel are usually classified according to (a) service departments and/or (b) subject departments. The service departments usually serve the entire system cutting across all levels of instruction. The subject department staff, however, may be grouped in a vertical plan whereby each is responsible for the supervision of instruction in a given subject area for all grades in the system. On the other hand, they may be organized in a divisional plan whereby each is responsible for a subject only within a given area, such as elementary or secondary education. The line-and-staff type of organization combines the elements of the pure line organization with that of the functional type but contains the strength of coordination and integration not found in the functional form. The coordinate system. Under the coordinate system of organization, the work of the line-and-staff officers is coordinated and integrated by a deputy or assistant super intendent who has the over-all responsibility for the 70 educational outcomes of instruction. The principal and staff members work together cooperatively toward goals which have been mutually established. The principal is responsible for the supervision of instruction in his building in a manner similar to that of the assistant or deputy superintendent, who is in charge of the special services and personnel under his immediate direction. Functions are specifically detailed by the superintendent so that all members of the professional team are aware of relationships and responsibilities. A typical arrangement in the coordinate system is for the staff members to be attached to the office of an assistant superintendent in charge of a division. Within the division is an executive control (the line) while the departmental service represents the staff. The assistant superintendent coordinates and integrates the various line and staff groups in order to secure a unified educational outcome within the school district. Contrasting the line-and-staff and the coordinate systems, the Eighth Yearbook of the Department of Superin tendence stated: Comparing and contrasting the two types of super visory organization we may point out that the line-and- staff system emphasizes differentiation and specializa tion in the services of administrators and technical experts. The coordinate system emphasizes cooperation and integration. These are points of strength. The weakness of the line-and-staff system in its 71 extreme form is that it hinders the cooperation of line-and-staff officers in the solution of common prob lems, and does not encourage creative contributions on the part of line officers. The weakness of the coordi nate system in its extreme form is that it encourages the overlapping of authority and discourages speciali zation. As a matter of fact, however, these schemes are rarely found in extreme form. The weaknesses above are largely corrected in practical situations by adapta tions and local administrative devices. The general line of solution for line-and-staff weakness is the formation of interlocking committees and other inte grating agencies. The correction of the weakness in the coordinate system lies along the line of the more specific allocation of duties and the formation of interlocking committees and conferences of people working at all levels. Each of these systems is practical and workable. Which one is selected will depend quite largely on the actual needs and traditional set-up of the given sys tem. Whatever scheme could be more easily constructed upon the existing practices, personnel, and conditions would probably be the best for a given school system. (70:56) IV. CHAPTER SUMMARY This chapter summarized the professional literature in the field of educational supervision and organization. Some of the major points made in this chapter are summar ized in the statements that follow. 1. The factors which seemed to have helped the forms of organization were considered to be dynamic rather than static. 2. The basic soundness of the organization was thought to be more important than having a standardized form which districts could emulate. 72 3. Modification of organization for each community was found to be an essential consideration in administra tive planning. 4. There was evidence that teachers did not use devices and activities which were provided by supervisors, even though they were acceptable to the teachers. 5. There still seemed to be some controversy as to whether teachers in the elementary schools should teach all subjects or if they should be supplanted by specially trained teachers in special subjects. 6. Research studies have indicated that there is little information concerning the number of supervisors which should be provided for districts of various sizes, or concerning the relationship which should exist among the supervisory personnel. 7. The importance of the principal as the educa tional leader in his building was emphasized regardless of the organizational pattern utilized. 8. Concern was shown for the status and functions of the department head in the high school internal organi zation with the suggestion that thought be given to the utilization of a more effective means of supervising in struction in the secondary schools than is possible with the department head system. 9. A trend was noted by one researcher for the establishment of the position of assistant superintendent 73 in charge of instruction in cities of 15,000 to 100,000 population. This trend was found to be greatest in the far west and in the southwestern portions of the United States. 10. Studies have shown a state of confusion regard ing such supervisory areas as lack of funds, differences between philosophy and practice, lack of understanding of supervisory duties, and the lack of appreciation and use of supervisory personnel. A definite need seemed to exist for the evaluation of supervision in order to strengthen the educational environment. 11. The fact that good teacher morale resulted when there was efficient arrangement of supervisory per sonnel was disclosed in a number of studies reported in the literature. 12. The human relations considerations, no matter how subtle, were factors of prime importance to the suc cessful functioning of supervisory services, according to writers on the subject. 13. In most districts a combination of organiza tional types were represented, since no "pure" organiza tional forms existed for supervisory services. A number of problems pertaining to supervision and supervisory organizations remain to be reconciled in many districts, among them (1) education and a resultant demand 74 for justification of programs; (2) the need for supervisors to be relieved of the task of rating teachers; (3) evalua- tional techniques and credits for in-service growth; (4) means for expanding supervisory staff; (5) the threat to the leadership role of the principal; and (6) the danger of demanding too much time outside the classroom from the teacher. General criteria for good supervision, able super visors, and efficient organization were found in the pro fessional literature. These statements had implications for the present investigation, and were helpful in estab lishing a preliminary list of criteria dealing with supervisory organizations. In the next chapter the procedures followed in the development, distribution and tabulation of three question naires are described. The questionnaires were the instru ments by means of which information for the investigation was gathered. CHAPTER III THE PROCEDURE OF THE INVESTIGATION I. COMPILATION OF PRELIMINARY CRITERIA In order to establish a point of reference to be used as a preliminary guide in the study of supervisory organizations, an intensive review of the professional literature was made in search of criteria pertaining to the organizational patterns suggested for the supervision of instruction. The criteria were found chiefly in pro fessional books on education and in doctoral dissertations. Altogether, forty-seven statements were compiled into a list for refinement and simplification for practical use in this study. The criteria were quite general in nature and were not formulated specifically for supervisory organizations, or with any emphasis on application to uni fied school districts in California. The statements of principle, or criteria, were util ized in formulating questions for the check lists included in the three questionnaires that formed the data-gathering instruments for the study. Some criteria, even though pro posed by specialists in the area of supervision or educa tional organization, were not considered to be on the same 75 76 level of practibility as others, so were either rephrased for direct application or eliminated in the final revision where the findings of the study did not support their in clusion. The listings are given in Chapter VI. II. THE INITIAL SURVEY Construction of the initial questionnaire. An instrument was devised to collect data from the California unified districts selected for inclusion in the study. The purpose of the questionnaire was to obtain information from administrators regarding the personnel involved in the administrative, supervisory, and special functions in the districts. Questions pertained to the number of months employed, the individual to whom the respondent was respon sible, and other working relationships. In addition, the administrators1 responses to questions regarding the devel opment of the organization and his analysis of its strengths and weaknesses were requested. The questionnaire was structured so as to obtain the patterns of personal and functional relationships that in such a manner could be charted. The numbers of teachers and student enrollments from kindergarten through grade twelve were also obtained. The items included in the questionnaire incorporated a number of basic criteria for supervisory organization taken from the initial list of criteria. The factual items were arranged so that responses could be made by marking a 77 check list; in addition, some questions called for unstruc tured answers. All statements were made in clear, direct, and brief form. Validation of the questionnaire. After the working drafts of the questionnaire had been revised several times, the material was mimeographed for submission to profes sional persons for their criticisms and suggestions. Indi vidual conferences were held with four assistant superin tendents in charge of instruction and with two school superintendents. In addition, three professors of school administration were consulted and their suggestions incor porated into the final revision of the questionnaire. Administration of the trial questionnaire. The mimeographed form of the survey instrument was sent to the superintendents and assistant superintendents in charge of instruction in nine districts. The administrators were requested to cooperate in the study by doing two things: (1) complete the survey instrument for their own district, and (2) analyze each item and respond to a series of ques tions pertaining to any aspect of the material which did not seem to be clear to them. A copy of the form used to evaluate the questionnaire is included in Appendix D. From the comments and suggestions received in answer to the trial questionnaire, the revised form was printed and prepared for general distribution. A copy of the final 78 instrument is included in Appendix A. Distribution of the initial questionnaire. Unified school districts in California that had student enrollments of 900 or over in October of 1957 made up the population surveyed by the initial instrument. In all, sixty-one districts throughout the state were sent questionnaires, together with letters inviting the administrators to par ticipate. The districts were located in twenty-three different counties in California, as listed in Appendix G. Self-addressed, stamped envelopes were included in the mailing in order to facilitate and encourage prompt re turns . Letter of transmittal. Personal letters, individu ally typed, were sent to either the superintendent or his assistant in each of the sixty-one districts selected for study. A letter of transmittal outlined the purpose of the study and solicited the cooperation of the chief adminis trator or his assistant. A copy of the summary was prom ised upon the completion of the study. The letter also indicated that the data gathered from all districts were to be considered confidential and used as part of the total material obtained from all respondent California unified school districts. A copy of the letter of transmittal may be found in Appendix E. 79 The follow-up letter. After four weeks had elapsed from the time of mailing the questionnaire, a follow-up letter including another copy of the instrument was mailed to the ten districts which had not responded. The letter used is shown in Appendix F. III. THE INTENSIVE FOLLOW-UP SURVEY Construction of the follow-up check lists. At the same time that the initial questionnaire was being devel oped and during the period when responses were being received from the initial questionnaire, two other instru ments were also prepared. The two check lists were con structed for the collection of data in districts selected for more intensive analysis in the phase of the investiga tion herein referred to as "the follow-up study.” One check list, Form I, was formulated to be directed to admin istrators and supervisory personnel; the other, Form II, was designed to be completed by classroom and special teachers. The tentative list of criteria for supervisory organization was used as an aid in formulating some of the check list items. Additional items were also included in order to obtain comparable opinions of various groups of respondents. Opportunity was given after each item for the individual to comment freely concerning the specific statement regarding supervisory organization and related problems of supervision in his district. Some of the items 80 contained in the two forms of the instrument (Forms I and II) were the same, some were similar, while others were entirely different, so that each respondent group was en couraged to respond fully to questions about which each was best qualified to furnish information or express an opinion. Copies of the follow-up instruments used in the intensive follow-up phase of the study are included in Appendices B and C. Validation of the check lists. Upon completion of the two check lists, they were carefully analyzed by the following individuals: three assistant superintendents in charge of instruction, a school psychologist, a curriculum coordinator, three classroom teachers, and a professor of educational administration in a university. Suggestions and comments made by the group were used to refine the instruments. The forms were then printed in two colors for ease of recognition and distribution: Form I, yellow; and Form II, green. Distribution of the follow-up questionnaires. After the tabulation of the initial questionnaire was completed, six districts were selected for an intensive survey and analysis. The districts in this second phase of the study were selected on the basis of the pattern of organization, representative size, geographical location, and the dis trict's willingness to participate. The districts were 81 personally visited by the investigator, and conferences were held with the superintendent or the assistant super intendent in charge of instruction. Having obtained clearance for the administration of the survey, the check list forms were packaged and sent to the district's representative who was asked to distribute them to each of the administrators and members of the supervisory staff. Distribution to classroom teachers and special teachers was made on the basis of a random sam pling. The responses to the check lists were kept as objective as possible by requesting the respondents to mail the forms directly to the investigator in self-addressed, stamped envelopes. Letter of transmittal. In addition to the confer ence held with chief administrators in each of the six follow-up districts, a letter was sent outlining the pro cedure to be followed in distributing the material. The benefits accruing to the district as a result of participa tion in the study were mentioned, and each district was promised a detailed report of the findings as soon as available. A copy of the letter sent to administrators inviting them to participate in the follow-up study is included in Appendix E. Report of results in districts. At the completion of the tabulation of returns, a complete and detailed 82 report was sent to the superintendent or assistant super intendent in each of the six districts, without identifi cation of the personnel making the responses. The report included the responses of all personnel to the check list items and a copy of each written statement. The material was placed in an attractive binder and introduced by a letter of appreciation and thanks for permitting the study to be made. A copy of the letter sent to one of the dis tricts may be found in Appendix F. IV. DEVELOPMENT OF CRITERIA FOR SUPERVISORY ORGANIZATION One of the final phases of the investigation was the development of criteria regarding supervisory organiza tions. The resulting criteria synthesized the re-occurring ideas and suggestions of all respondents in the study with concepts expressed by specialists and students writing in the professional literature. Actually, the final list of criteria was developed utilizing three approaches or processes: (1) criteria found in the literature were re tained if there appeared to be a practical application of the concept after considering the information resulting from the survey; (2) some modification or re-phrasing of concepts was done in order to make the criterion more applicable to the population under study; and (3) new cri teria were formulated which were an outgrowth of the 83 study's findings. As the criteria were being phrased, consideration was given as to their application to the unified school districts in California. No attempt was made to limit the applications solely to a single organizational pattern or to any particular geographic location. As stated in several portions of this study, it was desired that cri teria herein developed should be applicable to other than unified districts and in states other than California. CHAPTER IV RESULTS OF THE SURVEY OF ORGANIZATION OF SUPERVISION IN CALIFORNIA UNIFIED SCHOOL DISTRICTS In this chapter are presented the results of a sur vey of supervisory organization in unified school districts in Californiao The information was obtained by means of a questionnaire. The initial survey instrument was designed to reveal as many aspects of the supervisory organization of the district as possible and to provide the basis for an analysis of the district's supervisory organization, as reported by the district's chief administrator or his assistant. I. THE SURVEY PROCEDURES Procedures used in structuring the survey, and in developing and administering the instrument were described in Chapter III. The initial questionnaire was mailed to sixty-one unified school districts in California with student enroll ments of 900 or over, exclusive of Long Beach, San Diego, San Francisco and Oakland. Fifty-seven districts responded to the request for information. This number represented 84 85 94 per cent of the districts contacted. Adequacy of the sampling. Of the total number of districts eligible to participate in the study, all but four were included. Therefore, the sampling was assumed to be adequate for the initial phase of the study. Treatment of the data. The tabulation of the data was begun after all the questionnaires had apparently been received. The responses were recorded on large-size accounting sheets, with responses to each section of the questionnaire grouped separately so that summaries and analyses could be readily made. The summaries for each individual section were then transferred to other account ing sheets from which the final charts and tables were developed. II. THE RESPONDENT SCHOOL DISTRICTS Forms of school district organization. The three main forms of school district organization revealed by the study were the <3-3-3, the 6-2-4, and the 8-4. In addition, a number of other forms, such as the 7-2-5 and the 5-4-3, were also employed at the time the survey was made. As shown in Table I, the two most prevalent systems were the 6-3-3 and the 6-2-4. Although exactly one third of the districts were already organized on the 6-3-3 basis, five districts indicated a change to the 6-3-3 in the immediate TABLE I FORM OF SCHOOL DISTRICT ORGANIZATION IN CALIFORNIA UNIFIED SCHOOL DISTRICTS, 1957-58* Form of organization Student enrollment ---------------------------------- Group classification 6-3-3 6-2-4 8-4 Other Total Per cent A 900- 3,999 3 9 13 6 31 55 B 4,000- 6,999 2 3 0 0 5 9 C 7,000- 9,999 1 2 0 0 3 5 D 10,000-12,999 2 2 0 2 6 11 E 13,000-15,999 3 0 0 0 3 5 F 16,000-18,999 2 0 0 0 2 3 G 19,000-21,999 1 0 1 0 2 3 H 22,000-33,999 _5 _0 _0 0 _5 9 Total 19 16 14 8 57 100 Per cent of each form 33 28 25 14 100 * Includes 93.5 per cent of unified school districts in California with enrollments of more than 900, exclusive of San Francisco, Oakland, Long Beach, and San Diego. 00 87 future. In all but one case, the districts contemplating change were going from a 6-2-4 to a 6-3-3 pattern. The one exception was a district organized on a 6-6 basis. Should all contemplated changes occur as planned, the type of organization would be decisively in favor of the 6-3-3 pattern, which would comprise 42 per cent of the total. The distribution of the 6-3-3 schools was fairly even throughout the various sized school districts, with some slight favor shown among the systems enrolling over 22,000 pupils. However, the 6-2-4 and 8-4 organizational patterns were definitely predominant among the systems with less than 4,000 enrollment. Positions held by respondents. Table II shows the positions held by the individuals who responded to the questionnaire. The greatest number of respondents were superintendents, twenty-five of the fifty-seven respondents falling within this category. Assistant or deputy superin tendents in charge of instruction numbered twenty-one, representing one third of the total number of respondents. The assumption was made, therefore, that the information received was reliable since it came primarily from the chief administrators or their assistants. Counties surveyed. Twenty-four counties of the fifty-eight in California were represented in the study. The names of school districts in each county are given in TABLE II POSITIONS HELD BY RESPONDENTS Position Number Per cent of of responses responses Superintendent 25 44 Assistant or deputy superintendent of instruction 21 37 Director of education, or instruction Other 3 8 5 14 Total 57 100 89 Appendix G. It will be seen that Los Angeles County, with eighteen respondent districts, had the largest concentra tion of participating unified school districts in Cali fornia. The fact that all of the eligible districts in Los Angeles County participated in the study should give added weight to the findings for that county. III. CLASSIFICATION OF PERSONNEL In order to determine the type of positions and the number of persons involved in each, the participants in the study were asked to enumerate the number of personnel employed in each classification outlined in the survey instrument. Administrative-supervisory. Table III summarizes the administrative-supervisory personnel employed. All districts reported full-time building principals at the elementary and high school levels. At the intemediate and junior high school levels, however, only 70 per cent had full-time principals. The relatively low percentage of full-time principals at the junior high school level was due to the fact that only half of the districts in the 900-3,999 enrollment classification employed full-time principals, a situation which lowered the over-all per centage. Assistant principals for high schools were employed TABLE XXX CLASSIFICATION OF ADMINISTRATIVE AND SUPERVISORY PERSONNEL Number of personael, by enrollment classification* Total districts Num- Per Position A B C D E F G H ber cent Superintendent of schools 31 5 3 6 3 2 2 5 57 lOO Assistant (associate) deputy superintendent — bias iness 11 5 3 3 2 1 2 4 31 54 Assistant: (associate) deputy superintendent— instruction. 5 3 3 6 1 2 2 3 25 44 Assistant superintendent, director elementary education O O O 1 1 1 O 2 5 9 Assistant superintendent, director secondary education O O O o 1 1 O 2 4 7 Assistant superintendent— personnel, special ser vices 1 1 o 1 1 1 o 2 7 12 Business manager 5 o o 2 1 1 o O 9 16 Personnel director O 1 2 1 O 1 1 1 7 12 Research director O o O 2 O 1 o 7 * 7 12 Director of instruction 2 2 1 1 o O o o 6 IO Administrative assistant O O 1 O 1 1 1 1 5 9 Elementary principal 31 5 3 6 3 2 2 5 57 lOO Elementary assistant principal io 2 2 3 1 2 2 3 25 45 Elementary teaching principal 1 O 1 O 1 O O O 3 5 Junior high principal 16 5 3 5 3 2 1 5 40 70 Junior high assistant principal 11 5 2 5 3 2 1 5 34 59 Senior high principal 31 5 3 6 3 2 2 5 57 lOO Senior high assistant principal 23 4 2 6 3 2 2 5 47 83 Senior high dean IO 4 O 4 2 O O 1 21 37 ^Enrollment classifications: A B C D E F G H = 4 7 IO 13 16 19 22 OOOOOOOVO o o o o o o o o 00000000 1 1 1 1 1 1 1 1 3.999 6.999 9, 999 12.999 15.999 18.999 21.999 33.999 91 in more than four fifths of the districts, while three fifths employed junior high school assistant principals, and nearly half had assistant principals in the elementary schools. In the central office administrative organization, slightly less than half of the districts employed an assistant superintendent in charge of instruction. In the field of supervision, positions in twelve or more special areas were established as is shown in Table IV. Music consultants were employed in more than half of the districts, art and curriculum coordinators being repre sented in about one third. General consultant positions were established in one fourth of the districts, while one fifth reported supervisors in physical education, primary education, and secondary education. Other positions men tioned less frequently were in the fields of elementary education, audio-visual, library coordination, and coordi nation of instructional materials. The teacher-consultant, or helping teacher, was reported in 10 per cent of the districts, showing the extent of this relatively new posi tion. Special teachers. Table V summarizes the number of special teachers employed in the districts surveyed, by positions. By far the most frequent position found in the field of special subject teaching was the instrumental TABLE IV CLASSIFICATION OF SUPERVISORY PERSONNEL Number of personnel, by enrollment classification* Total unified districts Position A B C D E F G H in um ber ret cent Music consultant 9 4 1 6 2 2 1 5 30 53 Curriculum coordinator 7 1 2 3 1 2 1 3 20 35 Art consultant 4 1 0 5 2 2 0 3 17 30 General consultant 3 0 1 3 1 1 1 5 15 26 Physical education and recreation consultant 0 2 0 4 1 2 0 3 12 21 Elementary education consultant 1 0 1 0 2 1 1 2 8 14 Primary education consultant 4 0 0 1 0 1 1 4 11 19 Secondary education consultant 1 1 1 2 1 1 1 3 11 19 Audio-visual consultant 0 1 0 1 1 1 0 5 9 16 Library coordinator 2 1 2 0 0 1 1 2 9 16 Instructional materials coordinator 1 0 1 5 0 0 0 0 7 12 Teacher-consultant, helping teacher 0 2 1 1 1 0 0 1 6 10 Other (arithmetic, homemaking, speech, gifted child, business, special education) 16 28 * Enrollment classifications: A = 900- 3,999 B = 4,000- 6,999 C = 7,000- 9,999 D = 10,000-12,999 E = 13,000-15,999 F = 16,000-18,999 G = 19,000-21,999 H * 22,000-33,999 vo ro TABLE V CLASSIFICATION OF RESPONDENT SPECIAL TEACHERS Number of personnel, by enrollment classification* Total unified districts Position A B c D E F G H UUU1- ber r e i cent Instrumental music instructor 24 5 3 6 3 2 2 4 49 89 Speech therapist 11 2 3 6 3 2 2 3 32 56 Home instructor 7 2 3 5 3 2 1 3 26 46 Vocal music instructor 18 1 1 2 0 2 0 0 24 42 Teacher of the mentally handi capped 7 3 3 3 1 2 1 3 23 40 Remedial reading teacher 11 2 2 3 1 1 0 2 22 39 Physical education teacher 6 1 1 1 0 0 0 1 10 18 Teacher for the physically handicapped 2 0 1 2 0 1 1 3 10 18 Teacher for the blind or visually handicapped 0 1 1 2 0 0 0 0 4 7 Teacher for the deaf and hard of hearing 0 0 0 1 1 0 0 0 2 4 Other (swimming, arithmetic) 2 4 * Enrollment classifications: A = 900- 3,999 B = 4,000- 6,999 C » 7,000- 9,999 D - 10,000-12,999 E = 13,000-15,999 F « 16,000-18,999 G = > 19,000-21,999 H = 22,000-33,999 so u> 94 music instructor. Nine of every ten districts reported having instrumental music instructors. The speech thera pist position was maintained in more than half of the districts. Teachers for vocal music were provided in about two fifths of the districts, and about the same number of remedial reading teachers and teachers for the mentally handicapped. Special teachers for physical education and for the physically handicapped were reported in about one fifth of the districts. Other special teachers were assigned to work in such areas as the visually and aurally handicapped, arithmetic, and swimming. Special services. The number of special services positions reported was varied, and few significant patterns seemed to exist. As noted in Table VI, nurses were em ployed in more than three fourths of the districts; psy chologists and attendance-child welfare personnel in about half of them. To aid in the individual testing program and to provide information for the psychologists, about one third of the districts maintained psychometrists. Other positions existing in about one fifth of the districts were directors of special services, attendance counselors, and directors of guidance. Many, if not all of the positions in the special services area, help teachers directly with the instruc tional program by meeting the special needs of children. TABLE VI CLASSIFICATION OF SPECIAL SERVICES PERSONNEL Number of personnel, by enrollment classification* Total unified districts Ml ITT)— O a v Position A B c D E F G H ber cent School nurse 22 5 3 6 2 2 2 3 45 78 Psychologist 11 4 0 5 3 1 2 4 30 53 Attendance and child welfare 6 5 2 5 2 1 1 4 26 46 School physician 6 2 2 3 1 2 1 4 21 37 Psychometrist 3 3 2 1 2 2 0 4 17 30 Director of special services 1 2 2 2 1 1 2 0 11 19 Attendance counselor 2 0 0 0 2 2 1 3 10 18 Director of guidance 0 1 2 3 1 1 0 2 10 18 District librarian, coordinator 2 1 2 0 0 1 1 2 9 16 Dental hygienist 1 0 0 1 1 1 0 3 7 12 Instructional materials coordinator 1 0 1 5 0 0 0 0 7 12 Audiometr1st 0 0 0 2 0 1 0 3 6 10 Director of health services 0 0 0 1 2 0 0 2 5 9 Supervisor of nurses 0 0 0 2 1 0 0 0 3 5 Visiting teacher, school social worker 0 0 1 0 1 0 0 1 3 5 Pupil personnel director 1 0 0 0 0 0 0 1 2 4 Other (dentist, special training assistant) 4 7 * Enrollment classifications: A =* 900- 3,999 B = 4,000- 6,999 C = 7,000- 9,999 D = 10,000-12,999 E = 13,000-15,999 F = 16,000-18,999 G « = * 19,000-21,999 tj oo nnn oo 000 96 The importance to the total educational program of special teachers and personnel working in specialized areas is difficult to determine. However, the survey showed the extent to which school systems have utilized these services for the benefit of pupils and the professional personnel. IV. LENGTH OF ASSIGNMENT Supervision of instruction takes considerable time; the constant and pressing demands of school administration take a serious toll of the hours which many educators think could well be invested in classroom supervision and ser vices related to strengthening the educational program. The normal routine of the school day, although carefully planned to carry on a balanced program of supervision and administration at all levels of the school system, is usually not sufficient to accomplish the many projects which the operation of a modern school system demands. Therefore, the length of time for which members of the professional staff are employed to accomplish their respec tive tasks is an element of considerable importance in the over-all planning of the administrative and supervisory organization of a school district. A part of this study was therefore devoted to a determination of the length of the assignment of various members of the professional supervisory staff. In a later phase of the study, an investigation was also made of the adequacy of the time 97 available for the assigned duties of the administrative- supervisory staff. Building principals. Considerable range in the length of assignment characterized the position of the building principal. Table VII summarizes the practices found and shows the range in the length of employment (in calendar months) for elementary, intermediate, junior high, and senior high school principals. Ten calendar months was the period of employment used in nearly two thirds of the districts for elementary principals in schools extending from the kindergarten through the sixth grade. About the• same proportion of schools which included kindergarten through the eighth grade employed principals under a ten calendar months contract. Approximately one fifth of the districts employed principals for eleven calendar months in schools which included kindergarten through sixth grade schools, seventh and eighth grade intermediate schools, or senior high schools. Twelve-calendar-month contracts were utilized by half the districts for principals of three-year junior high schools and senior high schools. About one fifth of the districts placed principals in charge of kindergarten-through-eighth-grade schools on twelve- calendar-month assignments. These data reveal the recognition of districts for the leadership role of the building principals beyond the 98 TABLE VII LENGTH OF ASSIGNMENTS OF BUILDING PRINCIPALS Per cent of districts, by grade levels Number of calendar months of principals' assignments 10 10^ 11 12 Kindergarten through sixth grade 61 4 19 14 Kindergarten through eighth grade 57 0 14 22 Seventh and eighth grades 42 13 21 16 Junior high school 43 0 0 50 Senior high school 16 3 21 53 Note: A small percentage in each grade-level group failed to respond to this question; therefore, the per centages do not total 100. 99 time when schools are actually in session. Elementary and junior high school principals are not generally considered as having the demands usually associated with the senior high school programs. However, an extension beyond the period when teachers and pupils are in the building was found to be practiced in about one third of the school sys tems in the study. The ways in which the added time is used by principals at all levels would make an interesting study and would indicate how the time is being utilized after it has been provided. Central office administration. In only four of the fifty-seven districts studied were central office personnel employed for a period of time shorter than eleven calendar months. As is shown in Table VIII, the positions placed on a twelve-calendar-months basis were those of assistant superintendents in charge of business, instruction, person nel, personnel and special services, and deputy or asso ciate superintendents. The importance of central office personnel being on the job for the entire year is generally recognized by edu cators and school boards, since an opportunity is thereby provided for planning the in-service and supervisory activ ities which affect the total school system. Supervisory personnel. Existing practices in regard to the length of contract for district specialists or TABLE VIII LENGTH OF ASSIGNMENTS OF CENTRAL OFFICE ADMINISTRATIVE PERSONNEL Central office admini s t rat ive Number of calendar months of assignment 10 10% 11 12 personnel Number Per cent Number Per cent Number Per cent Number Per cent Assistant superintendent--business 0 0 0 0 0 0 31 100 Assistant superintendent— instruction 0 0 0 0 0 0 25 100 Director elementary education 0 0 0 0 2 40 3 60 Director secondary education 0 0 0 0 2 50 2 50 Director personnel, special services 0 0 0 0 0 0 7 100 Business manager 0 0 0 0 1 11 8 89 Deputy or associate superintendent 0 0 0 0 0 0 6 100 Director of personnel 0 0 0 0 1 14 6 86 Director of research 3 43 0 0 1 14 3 43 Director of instruction 0 0 0 0 1 20 5 80 Administrative assistant 0 0 1 20 1 20 3 60 o o 101 supervisors are shown in Table IX. Without exception, the most frequent length of assignment for the supervisory staff was found to be ten calendar months. About one fourth of the districts with elementary consultants and curriculum coordinators placed them on twelve-month con tracts. In districts with secondary specialists, almost one fifth placed them on either eleven or twelve-month assignments. The elementary coordinators and curriculum coordinators in about one fourth of the districts were also placed on a twelve calendar months basis so that they could have time in which to prepare for their leadership roles within the supervisory organization. No other consistent pattern of contractual arrange ment seemed evident in the data; apparently there is a variety of practice among unified school systems in Cali fornia with respect to length of assignment of supervisory personnel. Special services personnel. The same variance in practice found with supervisory personnel was noted in regard to special services personnel employed by some dis tricts. Data given in Table X indicate that about three fourths of the districts with special service directors placed them on a twelve month contract. Only two districts had positions of pupil personnel director and both employed them for eleven calendar months. The most frequent pattern TABLE IX LENGTH OF ASSIGNMENTS OF CENTRAL OFFICE SUPERVISORY PERSONNEL Central office supervisory personnel Number of months of assignment 10 (school) 10 (calendar) 11 (calendar) 12 (calendar) Number Per cent Number Per cent Number Per cent Number Per cent Art supervisor 4 24 12 70 1 6 0 0 Elementary coordinator 0 0 6 54 2 18 3 28 Curriculum assistant, coordinator 1 5 13 65 1 5 5 25 General supervisor 3 20 9 60 1 7 2 13 Music supervisor 8 27 20 67 1 3 1 3 Physical education-recreation 1 8 10 84 1 8 0 0 Primary supervisor 1 9 9 82 0 0 1 9 Secondary supervisor 0 0 7 64 2 18 2 18 o fo 103 TABLE X LENGTH OF ASSIGNMENTS OF SPECIAL SERVICES PERSONNEL Number of months of assignment Hourly ---------------------------------------------------~ assignment 10 (school) 10 (calendar) 11 (calendar) 12 (calendar) Number Per cent Number Per cent Number Per cent Number Per cent Number Per cent Attendance and child welfare 2 8 6 23 13 50 2 8 3 12 Attendance counselor 0 0 2 20 7 70 0 0 1 10 Audiometrist 0 0 4 67 2 33 0 0 0 0 Dental hygienist 1 14 4 58 2 28 0 0 0 0 Director of health services 0 0 0 0 4 80 0 0 1 20 District librarian 0 0 0 0 5 56 1 11 3 33 Elementary librarian 0 0 1 25 3 75 0 0 0 0 Instructional materials coordinator 0 0 0 0 3 42 4 58 0 0 Guidance coordinator 0 0 0 0 6 60 3 30 1 10 Nurses' supervisor 0 0 0 0 3 100 0 0 0 0 Physician 11 53 7 33 3 14 0 0 0 0 Psychologist 0 0 10 33 14 47 3 10 3 10 Psychometrist 0 0 6 35 10 59 1 6 0 0 Pupil personnel director 0 0 0 0 0 0 2 100 0 0 School nurse 0 0 32 71 13 29 0 0 0 0 Director of special services 0 0 0 0 2 18 1 9 8 73 Visiting teacher 0 0 2 67 1 33 0 0 0 0 Special services personnel 104 of assignment for special services personnel was ten calendar months. Three fourths of the districts which reported positions of attendance counselors, directors of health services, and elementary librarians, employed indi viduals in the positions on a ten calendar months basis. The three districts with nurses’ supervisors placed the individuals involved on a ten calendar months basis. About one third of the districts which employed psychologists, school physicians, and psychometrists placed them under ten school months contracts--the same as regular teachers. Two thirds of the districts also placed the audiometrist on a ten-school-months contract, while slightly less than three fourths made the same arrangement for nurses. Two positions which were recognized by some dis tricts as requiring a twelve-months’ contract were the district librarian and director of health services. Half the districts with coordinators of instructional materials placed them on eleven months’ assignments to provide con tinuity of services throughout the calendar year. Generally, the special services personnel were hired so as to be on duty for a few weeks before and after schools were in session in order to plan and prepare for their various responsibilities. Special teachers. Teachers employed for such 105 special areas of instruction as instrumental music, speech correction, remedial reading, physically and mentally handicapped children were almost universally hired under ten school months' contracts, just as are regular teachers. Since both special and regular teachers expend their ser vices directly for pupils, there seemed to be no question that their employment should be directly related to the time when pupils were in school. However, special teachers are customarily considered to be related to the supervisory organization to the extent that their services are of direct benefit to teachers. Classroom teachers receive help from special teachers by having less responsibility for meeting the specific and specialized needs of pupils because such services may be provided by specialists. As in the case of remedial reading, however, classroom teach ers have many opportunities to receive helpful suggestions for carrying on reading instruction for their entire class. Thus the special reading teachers, although not charged with specific supervisory responsibilities, have many opportunities to strengthen certain phases of instruction. V. IDENTIFICATION OF IMMEDIATE SUPERIOR In any organization, each person must know and understand the position to which he is directly responsible for his area of operation. In this investigation an attempt was made to determine from the respondents the 106 position to which each individual in the system was respon sible in order that organizational charts could be devel oped. The responses to the inquiry regarding immediate superiors are summarized in Tables XI, XII and XIII. Administrative personnel. Two main groups are reviewed in Table XI— the central office administrators and the school administrators. In the former group the great majority of persons were found to be responsible directly to the superintendent of schools. A notable ex ception was the position of research director which was shown to be responsible to the assistant superintendent in charge of instruction in 86 per cent of the districts em ploying a research director. The administrative assistants were assigned almost equally to assistant superintendent or superintendent, a slight preponderance being assigned to the latter. The building principals were responsible pri marily to the superintendent. However, the pattern of organization was found to be more varied than that of central office administrators. Responsibility to a central office administrative staff instead of to a single indi vidual was found to prevail in three districts and involved principals at all three levels. The approach taken in the three districts was based on the fundamental relationships which had been developed between members of the central office staff and the building principals. As explained by TABLE XI IMMEDIATE SUPERIOR OF ADMINISTRATIVE PERSONNEL Per cent: of responses by chief administrators to the question: "To whom is each of the following positions responsible?" Immediate superior Assistant superin- Position Superin- tendent, tendent instruction Principal Other Administrative assistant 60 40 0 0 Assistant superintendent--business 100 0 0 0 Assistant superintendent--instruction 100 0 O 0 Business manager 88 0 O 12 Deputy superintendent lOO O 0 0 Director of elementary education 80 20 0 0 Director of secondary education 75 25 O 0 Director of instruction 83 17 0 0 Director of personnel 72 28 O 0 Director of research 14 86 0 0 Director of special services 45 55 0 0 Elementary principal 79 12 0 9 Elementary assistant principal 4 0 96 0 Junior high school principal 76 13 O 11 Junior high assistant principal 0 O 100 0 Senior high school principal 83 10 0 7 Senior high assistant principal 2 O 98 0 108 the respondents, the principals were believed to be respon sible to a number of central office administrators, depend ing upon the area of operation. The extent to which such an arrangement was clear and understandable in the thinking of the principals naturally affects the degree of success of the organization. Special personnel. Data given in Table XII show the responses relating to the immediate superiors of special personnel according to the responses of chief administra tors or their assistants. It is seen that variations of personnel arrangement existed among respondent districts. Just as the major positions in the central office were directly responsible to the superintendent of schools, individuals designated as special personnel were found to be responsible chiefly to the assistant superintendent in charge of instruction in districts which had the position. The special personnel included such positions as director of health services, director of pupil personnel, district librarian, coordinator of instructional materials and guidance coordinator. In districts with nurses' super visors, about one third assigned them to the director of special services, the director of health services, or the assistant superintendent in charge of instruction. Generally, the pattern of relationships seemed rea sonable when viewed in the light of the functions involved. TABLE XXX IMMEDIATE SUPERIOR OF SPECIAL PERSONNEL Per- cent: of responses by chief administrator's to the question: "To whom is each of the following positions responsible?" Immediate superior Position 4-1 4-1 e 0 o OJ 1 0 » 4 - 4 C 4 - 4 > - c a 0 O O > 4 o cu O <u 4-1 o> • p4 ■ 4 l - i (3 CO x -M 4-1 0 4- 1 4-1 CO S - i CO o M 1 - 1 4-1 CO cu CO 0 CO 0 O 0* o ■u •M o r — < o i 1 cu o e • s " 4 4-1 0 - i - J u a Ci u CO 4J CO o a --4 H CO > - i O u cu CO o * i —i CO u cu *—c CO •o M 0 > * r - f Q> 4-1 0 OJ S o cu o cu cu JS > -a J - 4 CU a* CO O- CO •H J - i cu 9 S - 4 CU o ) - < 1 - 4 -M o . 1 3 0 0 0 ■ 1I — 1 •O * 1 —1 a. ” 1 — 1 •M CM cu 9 o 44 cn CO P-i Q cu CU Q CO > a o CO O o o Attendance and child welfare 23 35 4 O 15 O O 23 Attendance counselor io 20 IO O 20 0 O 40 Audiometr1st O 17 O O 17 33 O 33 Dental hygienist 14 O o O 14 29 O 43 Director of health services O 60 o O 20 O O 20 District librarian 0 78 o 11 O 0 O 11 Elementary librarian O 25 25 25 O O O 25 Instructional materials coordinator O 86 O O O 0 O 14 Guidance coordinator O 90 O O IO O O O Supervisor of nurses O 33 O O 33 33 O O Physician 14 24 O 5 39 9 O 9 Psychologist 13 37 3 O 17 O 3 27 Psychometrist 6 12 6 O 18 O 23 35 Pupil personnel director O lOO O o O 0 O O Director of special services 45 55 O o O O O O Nurse 16 11 24 o 20 11 O 18 Visiting teacher O O O o 33 O 67 O 110 For example, the "other” positions to which the dental hygienists were directly responsible included a dentist or a physician; nearly half of the attendance counselors were responsible to guidance directors and the rest to the director of special services, the assistant superintendent in charge of instruction, the superintendent, and, in some cases, the principal of the school. Supervisory personnel. The data concerning the group of positions designated as supervisory personnel and the persons to whom each was responsible are shown in Table XIII. According to the great majority of respondents, the assistant superintendents in charge of instruction were the immediate superiors of specialists in music, physical education, primary and secondary education, and general supervision. Two thirds of the districts with teacher- consultants placed them under the direction of the assist ant superintendent in charge of instruction, and the other third placed them under the directors of elementary educa tion. About half of the elementary consultants and curric ulum coordinators were responsible to the assistant superintendent in charge of instruction, while most of the rest were assigned to the superintendent or principal. The two major leadership positions in relation to the supervisory staff were found to be the superintendent and the assistant superintendent in charge of instruction. TABLE XIII IMMEDIATE SUPERIOR OF SUPERVISORY PERSONNEL Per cent of responses by chief administrators to the question: "To whom is each of the following positions responsible?" Immediate superior Position t 1 4-1 4-1 4-1 a s o 0 o 0) 4J Q ! 1 a i — i u s >* 3 VI 3 VI 3 0 «d V I 3 o V I u O VI 3 a id c •rl •H a o VI v l o cd •rl 0 H 3 •H VI •rl 1 VI •rl VI 3 VI VI • a VI VI 3 C l Vi co Vi 1 o C l C l 0 ) cd t ! s 3 O •rl •rl Vl 3 VI • H < 1 1 VI 3 3 < uS o o o O 3 a > 3 Cu a C O O .s V i • r i V i 0 1 3 H o 3 Vi 0 ) Vl j a 3 3 C O 3 a> VI V! •H p-4 •O 3 T 3 •rl a 3 VI to T 3 C O • o co Ou a a) < U C l C O (U Q 3 3 o Art consultant 12 76 0 0 0 0 12 Elementary consultant 12 50 25 0 0 0 13 Curriculum coordinator 30 55 5 0 5 0 5 General supervisor 20 67 0 0 0 0 13 Music supervisor 20 77 0 0 0 3 0 Physical education and recreation consultant 0 75 0 0 17 0 8 Primary consultant 18 64 9 9 0 0 0 Secondary consultant 9 91 0 0 0 0 0 Teacher-consultant 0 67 0 33 0 0 0 112 Therefore, an understanding of the relationships and responsibilities of these two positions within a district is extremely important; unless the supervisory organization clearly illustrates the functions and areas of activity of both positions, only confusion can result. Therefore, the superintendent, as the educational leader of the school system, must make sure that his immediate subordinate in the field of instruction clearly understands and adheres to the areas of responsibilities outlined in writing. VI. REACTIONS TO THE SUPERVISORY ORGANIZATIONS Factors affecting organization. The investigation sought to determine the major factors instrumental in establishing the supervisory organizations in existence during the 1957-58 school year. Respondents were requested to answer the question: "What major factors, such as available personnel, finances, teacher needs, etc., influ enced the establishment of the present organization of supervisory services in your district?" The responses as tabulated are shown in Table XIV. Nearly half of the respondents listed financial limitations as the major factor affecting the development of their organization. Nearly a third declared that the rapid growth of their school systems resulted in an in creased teacher-consultant ratio which tended to "water 113 TABLE XIV FACTORS WHICH INFLUENCED THE ESTABLISHMENT OF THE SUPERVISORY ORGANIZATION Responses by chief administrators to the question: "What major factors such as available personnel, finances, teacher needs, etc., influenced the establishment of the present organization of supervisory services in your district?" Responses from unified districts Factors Number Per cent Financial limitations 23 40 Growth characteristics 17 30 Needs of pupils and teachers 15 26 Philosophy of the district 12 21 Personnel in the district 10 18 Needs of curriculum 7 12 Small size of the district 6 10 Recommendations of professional surveys 5 9 114 down" the services provided. The needs of pupils and teachers were given as influencing factors by one fourth of the districts. Twenty-one per cent stated that the district's philosophy was the main reason for the particu lar pattern of organization utilized. Almost a fifth of the respondents reported that the personnel available in the district constituted a major factor in establishing the organization. The needs of the curriculum, the small size of the district, and the recommendations made by professorial surveys were given as influencing factors by about 10 per cent of all districts in the study. In summary, the five major factors that were respon sible for the development of supervisory organizations in the surveyed unified school districts included: (1) lack of funds; (2) rapid growth of the district; (3) needs of pupils and teachers; (4) philosophy of the district; and (5) utilization of personnel already in the district. The fact that so few supervisory organizations devel oped through the aid of some form of professional survey was of particular interest. Assuming that a thorough and objective analysis of a school system is possible by using a disinterested professional team, one might wonder why a greater utilization of such services was not made. It would seem that the savings in dollars achieved through removal of duplication of responsibilities and the greater efficiency resulting from a clear-cut delineation of 115 relationships would unquestionably win the approval of professional staff and community. Commenting on the problem of finances, one superin tendent said, "Lack of funds dictates our organizational set-up. We are operating with two less supervising prin cipals this year due to the defeat of a tax issue at the polls." In giving another reason for the organization in his district, a deputy superintendent in a district enroll ing over 6,000 students wrote: The present organization of supervisory services was established around the concept that the principal should be the instructional leader of his particular school. The major responsibility for the improvement of the instructional program has been delegated to the individual principals. In still another district with over 8,000 pupils, an assistant superintendent in charge of instruction gave two factors which influenced the supervisory services rendered in his district: "Financial pressure resulted in eliminating the supervisory staff which consisted of full time people in art, music, and physical education." In a smaller district with 2,600 pupils, the influ ence of growth had an apparent toll as the superintendent explained: Rapid growth from 105 A.D.A. to 2,655 in ten years has placed emphasis on buildings and equipment and drained all available finances. Our school district is responsible for 22 per cent of the total growth of the county which has 70 districts. 116 Relationships between supervisors and principal. In any organization, the working relationships between cer tain members of the staff and among the total staff are of inestimable importance to efficient and harmonious opera tion. Especially in the field of education, where profes sionals are striving for the maximum effectiveness of a complex enterprise, working relationships should be clearly defined and understood. However, in any human endeavor differences of opinion are bound to occur. Therefore, the survey requested information regarding the procedure for resolving differences of opinion as to methods of instruc tion between supervisory personnel and building principals. Table XV summarizes the responses to the question: "How are any disagreements resolved between the principal and a supervisor on the superintendent's staff regarding methods and techniques of teaching?" Approximately half of the districts reported the use of group conferences to resolve questions dealing with techniques of instruction. Personal conferences as a means used to establish understandings regarding methods of instruction were reported by one fifth of the districts, while nearly an equal number stated that the assistant superintendent in charge of instruction was the mediator of any disagreements. One superintendent commented regarding the resolving of problems of personnel relationships: "We have many con ferences and open discussions. We are fortunate in having 117 TABLE XV WAYS IN WHICH DISAGREEMENTS BETWEEN PRINCIPALS AND SUPERVISORS ARE RESOLVED Responses by chief administrators to the question: "How are disagreements resolved between the principal and a super visor on the superintendent's staff regarding methods and techniques of teaching?" Responses from unified districts Means of ------------------ resolution Number Per cent Group conferences 28 49 Personal conferences 12 21 By the assistant superintendent in charge of instruction 10 18 By the superintendent 8 14 Roles are clarified 8 14 By the principal 6 10 By in-service program 3 5 By written policies 3 5 118 a give-and-take spirit here with mutual respect for the other fellow’s opinions." Another superintendent said succinctly, "Each person knows the boundaries of his own position and these boundaries are respected." A third superintendent indicated a more formal means of establish ing communications to keep understandings at a high plane when he said: We have an administrative council meeting once a week for two hours. Areas of responsibility have been carefully studied and close communication helps. Supervisors' report for first month indicate fifteen conferences each between supervisors and principals in addition to group meetings. Only 14 per cent of the districts commented on the importance of understanding the role of each person through written statement of duties and responsibilities. Relationships between teachers and supervisory personnel. Another area of human relations in a school system organization considered in the general study dealt with teacher-supervisor relationships. Respondents were requested to react to the statement: "In matters pertain ing to methods and techniques of teaching, the teachers generally follow the instructions given by (a) the super visor; or (b) the principal." In Table XVI are summarized the data. It will be observed that a certain degree of confusion existed as to the roles of supervisors and teachers in an educational enterprise requiring complete harmony. 119 TABLE XVI TEACHERS' SOURCES OF DIRECTION FOR METHODS OF INSTRUCTION Responses by chief administrators to the question: "In matters pertaining to methods and techniques of teaching, the teachers generally follow the instructions given by:" Responses from unified districts Source Number Per cent The principal The principal, and supervisors Supervisors 31 54 13 23 5 9 120 Slightly more than half of the districts reported that the resolution of questions raised by teachers was a responsibility of the principal. About 10 per cent stated that the supervisor made the decisions on methods or tech niques when questions arose. As evidence of further con fusion, about one fourth of the responding administrators declared that both the supervisors' and principals' in structions were followed by teachers. From the responses there were indications that the relationships among principals, teachers and subject spe cialists were sometimes strained. The misunderstandings that would result from twilight areas of responsibility or conflicting judgments suggested that real problems could arise for the teacher who is caught in the "middle" between his principal and the specialist. Avoiding such conflicts by a clear explanation of roles and relationships are essential organizational requirements. Relationships among supervisory personnel. Peer relationships among professional supervisory personnel were studied as they related to the over-all organization for supervision. Respondents were requested to state in their own words their answers to the question: "How are working relationships and responsibilities established among super visory personnel in your district?" Data given in Table XVII show that staff meetings and conferences were by far 121 TABLE XVII MEANS OF ESTABLISHING WORKING RELATIONSHIPS AMONG SUPERVISORY PERSONNEL Responses by chief administrators to the question: "How are working relationships and responsibilities established among supervisory personnel in your district?" Responses from unified districts Means of ----------------- establishing Number Per cent Staff meetings 27 48 Written policies 16 28 Team approach 14 25 Written duty statements 7 12 Coordination by assistant superin tendent in charge of instruction 5 9 Curriculum development 3 5 Periodic review of responsibilities 1 2 Organizational charts 1 2 Other 3 5 122 the most frequent means of establishing good working rela tionships among supervisory personnel, as reported by their administrators. The next two most frequently reported practices were the utilization of policy statements and the use of a team approach in solving educational problems. For example, in a small district of about 1,500 pupils, the superintendent described the necessity of a team approach for solving instructional problems by saying: We have a peculiar arrangement in that most of the curriculum specialists working in our district are employed by the county superintendent of schools. They work out of the county office but handle problems re ferred by me or a principal. Because we are generally short of personnel in the district and in the county, we are forced to work in close harmony to keep ahead of the demands of the situation. Still another approach was reported by a superin tendent of a 2,600 pupil district and illustrated the technique of slow progress and mutual understandings: We work hard at developing professional relation ships. Supervisory personnel are strongly urged to go somewhat slowly at first; to sit in with teachers at lunch, to fraternize, and to start with small group conferences. In a large district of more than 21,000 students, an assistant superintendent in charge of educational services stated emphatically the need for keeping the organization simple for better understanding: The tone of relationships is set by the superintend ent. Supervisory personnel are expected to be respon sible for their assigned duties. We don't believe in "passing the buck" up or down the line. Professional relations between staff members are maintained on an open, common-sense basis. The organization is kept as 123 simple as possible with line and staff relations as direct and uncluttered as we can possibly make them. It should be noted that in only 2 per cent of the districts were organizational charts mentioned as a means of clarifying relationships and avenues of responsibility. A periodic review of job duties was mentioned by another 2 per cent of the districts, while 12 per cent used written duty statements for the purpose of giving better under standings of relationships. Understanding of supervisory organization. Regard less of the form that may be taken by an organizational pattern, its effectiveness will be greatly influenced by the degree of understanding of the organization by the per sonnel involved. The administrators who responded to the general survey were asked to indicate what, in their judg ment, constituted the relative degree of understanding of the supervisory organization held by teachers, supervisors, principals, and superintendents or their assistants. From an analysis of the data shown in Table XVIII, it is indi cated that in the opinion of the respondents, teachers had the least understanding of the organization designed to render them assistance. In the smaller districts, where the teaching staff was small and the organization rela tively simple, teachers had a somewhat better understanding than did their colleagues in the larger school systems. In contrast, the administrators at the building and 124 TABLE XVIII DEGREE OF UNDERSTANDING OF THE SUPERVISORY ORGANIZATION Per cent of responses by chief administrators to the question: "To what extent do you believe that the organiza tion for rendering supervisory services in your district is understood by the four groups below?" Group Well un- Some misun- Definitely derstood derstanding misunderstood Superintendent or his assistant 82 18 Principals 67 33 Special and super visory personnel 67 33 Teachers 26 70 4 125 district levels were reported as having a very good under standing of the supervisory organization. How understand ings which are common knowledge to administrators can be transmitted to teachers is a challenge in communications, a problem with which this investigation was vitally con cerned. Responsibilities for the results of instruction. An area in which there seemed to be universal agreement among the administrative respondents was the responsibility of classroom teachers to the building principal for the results of instruction in regular and special subjects. Regular subjects included such courses as mathematics, English, reading and science; special subjects referred to art, music and physical education and similar courses. In only one instance did the respondent indicate that elemen tary teachers were responsible to the director of elemen tary education and that secondary teachers reported to the director of secondary education. The importance of under standing by teachers, supervisors, and administrators concerning the person to whom teachers are responsible for the results of instruction cannot be over-emphasized. The diversity of opinions among the professional staff member ship in this regard is evident in the results of the follow-up study of selected districts which are presented in the next chapter. Achievement of instructional goals. Table XIX shows the number of districts that responded to the ques tion: "In your professional judgment, to what degree does the organization for rendering supervisory services in your district make possible the attainment of the instruc tional goals of the district?" Administrators stated they were able to make judgments concerning the attainment of instructional goals based on all they knew about the prog ress of their school systems in relation to the total educational achievement of students while in school, in institutions of higher learning, and in observing their behavior in the community. Nearly one fourth of the respondents reported that the achievement of the instructional goals, as conceived in their districts, was highly satisfactory. Less than half said the instructional goals were being achieved to a satisfactory degree, while about one fifth stated that improvement was desirable. A small group, representing about 10 per cent, failed to answer the question. Many of the districts under 4,000 enrollment were concerned over the need to improve the attainment of instructional goals. On the other hand, the districts with more than 6,000 pupils gave the largest number of responses indicating that the achievement of instructional goals was "highly satisfactory." In other words, there appeared a definite relationship between such factors as size of 127 TABLE XIX EXTENT OF ACHIEVEMENT OF INSTRUCTIONAL GOALS Responses by chief administrators to the question: "In your professional judgment, to what degree does the organization for rendering supervisory services in your district make possible the attainment of the instructional goals of the district?" Responses from unified districts Extent of ------------------ achievement Number Per cent Satisfactory 25 44 Highly satisfactory 13 23 Improvement is desirable 12 21 No response 7 12 128 district. The variety of specialists employed, and the statement that the attainment of the instructional goals of the district was "highly satisfactory." Some exceptions were noted: Districts reporting that the degree of achievement of instructional goals was "satisfactory" ranged from the smallest to the largest and showed no particular pattern. Coordination of supervision. A study was made to determine the position in each district that was respon sible for the coordination of supervisory activities. Table XX shows that, in twenty-four of the twenty-five dis tricts which employed an assistant superintendent in charge of instruction, the individual in the position was respon sible for coordinating the supervisory program in the dis trict. The one exception was the district in which the coordination of supervision was a joint staff responsi bility rather than one assumed by a single individual. The position mentioned next most frequently as the one responsible for coordinating supervision was that of superintendent of schools. Here again, it should be noted that in the smaller school districts where a specialized staff was found to be limited, the superintendent was required to accept the responsibility of coordination him self in order to obtain desired results. The importance of determining the person or persons 129 TABLE XX THE POSITION RESPONSIBLE FOR COORDINATING THE SUPERVISORY PROGRAM Responses by chief administrators to the question: "What position in your district carries the responsibility for coordinating the supervisory program?" Responses from unified districts Position Number Per cent Assistant superintendent in charge of instruction 25 44 Superintendent 19 33 Curriculum coordinator 7 12 Principal 2 4 Joint staff responsibility 1 2 No response 3 5 130 responsible for giving professional leadership to supervi sion cannot be over-emphasized. Usually, the superintend ent or assistant superintendent in charge of instruction is the leader in coordinating supervision. Where both posi tions exist in a district, a decision must be reached as to which one is to accept the main responsibility for coor dinating the supervisory program. The decision then must be made known to all concerned in order to establish the necessary rapport. Major strengths of the supervisory organization. Every school administrator who responded to the question naire was requested to note the major strengths of the supervisory organization existing in his district. The question was asked: "What do you consider to be the major strengths and most promising features of the supervisory organization as it now exists in your district?" Table XXI summarizes the various categories which resulted from an analysis of all comments made on the sur vey sheet. Five major strengths were repeatedly mentioned by the administrators as being characteristic of their organizations for supervision: (1) clear-cut responsibili ties; (2) the role of the principal as the responsible leader; (3) clear-cut relationships; (4) good educational climate created; and (5) general competency of the staff. Actually, each of the five strengths was reported by 131 TABLE XXI MAJOR STRENGTHS OF THE SUPERVISORY ORGANIZATION Responses by chief administrators to the question: "What do you consider to be the major strengths and most promising features of the supervisory organization as it now exists in your district?" Responses from unified districts Strengths Number Per cent Clear-cut responsibilities 12 21 The principal as the responsible leader 11 19 Clear-cut relationships 10 18 Creation of a good educational climate 10 18 Staff competency 10 18 Flexibility and simplicity of the supervisory organization 8 14 Potential for in-service growth 4 7 Curriculum development opportunities 3 5 Other reasons 8 14 132 approximately one fifth of the respondents. The assumption was made, therefore, that the five areas were generally of equal importance and should be considered in this light in any conclusion derived from the study. The responding administrators represented districts with a wide range of pupil populations and a variety of organizational patterns. However, the fact that the basic strengths were confined to five major areas was of major interest to this investiga tion of unified school districts in California. Mentioned less frequently but nevertheless of im portance for consideration were two additional strengths: (1) the flexibility and simplicity of the organization, and (2) the involvement of personnel in the establishment of supervisory organization. A number of comments written by superintendents illustrated what they felt were unique strengths of their organizations. One summarized the observable strengths as follows: "Strong professional status of individuals; fairly low work load; staff morale and enthusiasm; and support of schools given by the community." Another superintendent said: "Good rapport between supervisory staff and teachers. Supervisors other than principals do not rate teachers for tenure recommenda tions." Still another superintendent felt that the emphasis on the positive approach was a major strength in his 133 organization: "We have a well-understood philosophy that supervision must mean 'growth,' not 'fault-finding.'" The important role of the building principal was given by the superintendent as a major strength of the organization when he wrote: "Our organization does not take away any responsibilities of the building principal for his instructional program. Consultants and supervisors supplement his services." In a large district of 13,000 pupils the deputy superintendent also pointed to the key positions of the principals as a feature of the organization by writing: We have a limited number of supervisors. Responsi bility is placed on the principal for instructional program in his school. Consequently conflicts through over-lapping, divided authority, etc., are virtually non-existent. The most pointed and succinct observation was made by a superintendent of a 1,500-pupil district: "I always know where the responsibility lies and am not too comfort able about it." Strengthening the supervisory organization. After administrators were asked about the strengths of the supervisory organization, they were requested to state how their organizations could be improved. The assumption was made that improvement of any pattern of organization was always a concern as well as a responsibility of all public school administrators who were dedicated to their tasks. 134 Table XXII enumerates the varied responses to the question: ‘'What do you consider to be desirable modifications in order to strengthen the supervisory organization in your district?" About half of the respondents stated that the addi tion of new positions was essential in order to strengthen the organization. The two most frequently mentioned posi tions were those of curriculum consultant or coordinator, and the addition of an assistant superintendent for in struction. Other positions, including specialists in art, primary and elementary education, were not suggested with great frequency but were mentioned often enough to indicate felt needs among administrators. In a later portion of the study, the needs noted by administrators are compared with those expressed by class room teachers in six selected districts, to compare the views of various groups of educators regarding the super visory needs in their respective districts. Table XXIII summarizes the responses to the question of desirable modifications, excluding the addition of per sonnel. The factor most often mentioned to improve the organization for supervision related to reducing the ratio between teachers and supervisors or specialists. In dis tricts employing consultants in special areas, administra tors felt that the employment of an insufficient number of persons rendered the services useless, the result of 135 TABLE XXII RECOMMENDATIONS FOR STRENGTHENING THE SUPERVISORY ORGANIZATION BY THE ADDITION OF PERSONNEL Responses by chief administrators to the question: "What do you consider to be desirable modifications in order to strengthen the supervisory organization in your district?" Responses from unified districts Personnel which should be added Number Per cent Curriculum coordinator 8 14 Assistant superintendent in charge of instruction 7 12 Primary and elementary consultant 5 9 Art consultant 2 4 Other positions 3 5 136 TABLE XXIII MODIFICATIONS RECOMMENDED FOR STRENGTHENING THE SUPERVISORY ORGANIZATION Responses by chief administrators to the question: "What do you consider to be desirable modifications in order to strengthen the supervisory organization in your district?" Responses from unified districts Recommendations Number Per cent Reduce teacher-supervisor ratio 17 30 Increase competency of principals 8 14 Change supervisory organization 7 12 Satisfactory "as is" 7 12 Improve communications 5 9 Obtain greater board support 3 5 Furnish more clerical help for principals 3 5 Develop better delegation of responsi bilities 2 4 Develop accurate job specifications 2 4 Develop written board policies 2 4 Other 3 5 137 inadequacy of coverage. Approximately one third of the districts were dissatisfied with the number of individuals available for directing special areas of instruction and said that the ratio should be decreased by adding per sonnel. About 10 per cent of the administrators stated that the supervisory organizations were satisfactory in their districts and no changes for improvement were necessary; a similar number said that a needed modification was a change in the supervisory organization. The only area not related to the addition of super visory personnel dealt with the strengthening of the com petency of the building principal. In commenting on specific areas wherein the super visory organization could be strengthened, a number of responses received support from other superintendents included in the study. One superintendent, recognizing the difference in relationships between a line or staff person with teachers and principals, said: Change to a line relationship rather than staff for the direction of instruction. This might be accom plished by having an assistant superintendent in charge of instruction; add curriculum consultants. In another district which enrolled approximately 14,000 students and included a director of elementary edu cation as well as a director of secondary education, the deputy superintendent stated: "Have a director of instruc 138 tion in place of two persons (directors of elementary and secondary education).'1 Speaking of the need for better board support, a superintendent said: "We need more support at the board level. They have refused to permit vice principals to be appointed." The purpose of the additional administrative staff was reported to be to relieve the principal of routine duties in order to gain more time for supervision of instruction. This same suggestion was offered by an assistant superintendent in charge of educational services in another district, as follows: Additional help or modification of the organization which will free the principal from some administrative activities in order that he may have more time to devote to the instructional program and the supervision of teaching. Another approach to strengthening the supervisory organization was given by a superintendent from a 3,100- pupil school system. He said: "Employ stronger principals more capable of giving supervisory assistance to teachers; provide supervisory personnel for primary and intermediate grades to assist principals." One superintendent from a 2,800-pupil school system commented on the need for the addition of a top-level administrator to improve the organization by saying: "If the district's size justified it and finances permitted, I would set up the position of assistant superintendent in charge of curriculum." 139 In a district of 8,200 pupils, the assistant super intendent in charge of educational services enumerated the means by which the supervisory organization in his district could be improved by stating: Special areas such as art, vocal music, health, safety, and physical education are weakened in this district by the lack of specialists to give teachers directionso Therefore it would appear that the addi tion of such personnel may be desirable. There should be a more intensive in-service training of supervising principals and more clerical help to principals so they may find more time for supervision. There should also be more aid at the district level in order that the assistant superintendent would have time to give leadership to the total supervisory program. Influence of the superintendent. The final request for information included in the general survey of sixty-one unified districts in California concerned the role or in fluence of the superintendent in providing leadership for the adequate establishment and functioning of a supervisory organization. Again, as with the other non-structured questions, the respondents were asked: "Specifically, what can the superintendent of schools do to further strengthen the supervisory organization in the district?" The results are presented in Table XXIV. Three ways whereby the superintendent could truly be influential in giving his professional leadership as well as his authority to provide an organization for adequate supervisory services were stated as: (1) continuously or periodically to clarify the duties and responsibilities of 140 TABLE XXIV THE SUPERINTENDENT'S ROLE IN STRENGTHENING THE SUPERVISORY ORGANIZATION Responses by chief administrators to the question: "Specifically, what can the superintendent of schools do to further strengthen the supervisory organization in the district?" Responses from unified districts Recommendations Number Per cent Clarify expectancies and responsibilities 15 26 Recognize need and provide funds for competent supervisors 12 21 Encourage and recognize the supervisory staff 10 18 Set a high tone of professional leadership at all meetings 7 12 Keep the board and community informed of the supervisory organization 7 12 Exercise leadership in major issues 6 10 Create a permissive educational atmosphere 6 10 Coordinate and expedite the work of competent assistants 5 9 Delegate authority with responsibility 5 9 Believe in the supervisory organization 5 9 Select only top personnel 5 9 Other 7 12 141 members of the supervisory staff; (2) to recognize the need and provide funds for a competent supervisory staff; and (3) to encourage and recognize the supervisory staff in order that it may feel that they are an integral part of the total educational enterprise. The need for recognition of the superintendent's key position as the director of all educational activities was stated by 12 per cent of the respondents who believed that he should set a high tone of professional leadership at all meetings in which he took part. Another 12 per cent stated that the superintendent should keep the board of education, as well as the community, constantly informed with the work and needs of the supervisory staff so that respective roles and responsibilities were understood clearly. Many written comments were made by respondents, 44 per cent of whom were superintendents, regarding the influence of the superintendent in strengthening the super visory organization. A number of typical statements are here recorded to show the thinking and attitude of the educators as they viewed their own roles critically, or as their immediate assistants looked to their superintendents' leadership responsibilities. One assistant superintendent enumerated the following suggestions concerning how the superintendent could lend his influence: 142 Take a genuine interest in instruction and provide leadership to the board in obtaining the support needed for a program. Establish the organization on a policy basis with clear-cut lines of responsibility and authority. Duties should be clearly understood by all and it is the obligation of the superintendent to see that these are communicated to all concerned. A superintendent made the following suggestion con cerning his role: Maintain as close contact as possible with the activities of the supervisory staff and continually clarify expectancies and responsibilities, and when necessary, give specific direction through channels. Another superintendent felt he needed to "get better understanding on the part of the board to make more super vision available as well as more funds." The utilization of known principles of working with people was stressed by a respondent who wrote: "Under standing of group dynamics and taking time to discuss problems of human relationships." This same point was also stressed by a respondent who wrote: Exert his role as leader in human relations by com municating his purposes and allowing for freedom of action followed by constructive criticism; clarify the joint role and division of authority for supervisors and principals. An assistant superintendent in charge of instruction listed the following areas in which the superintendent's influence could be beneficial to the supervisory organiza tion : (1) Assume active and aggressive leadership in pro viding funds for an adequate supervisory staff; (2) set a high tone of professional leadership in all group meetings so as to provide principals an example of a 143 similar role at the building level; (3) make sure that all staff members, both teachers and administrators, understand relationships and individual responsibili ties; (4) keep the board of education informed and interested in the supervisory organization of the dis trict. Recognizing the importance of a pat on the back for the development and maintenance of good morale, one re spondent said briefly: "Be aware of good supervisory work and give credit for it." A superintendent of a large district of 22,000 pupils made the following specific suggestions as to how the leadership of the superintendent could be directed: Participate in the process step by step; be close to it; be sympathetic to it, and free the hands of those in charge. Hold key people responsible--assist- ant superintendents and principals. In a district of 21,000 pupils, an assistant super intendent noted three areas where superintendents could well add the prestige of their leadership: (1) Make all district personnel aware of the func tions and responsibilities of the supervisory staff; (2) make use of the supervisory staff as consultants to the superintendent on instructional matters; (3) under the leadership of the superintendent hold joint meetings between the supervisory staff and building principals affording all present an opportunity to participate in the deliberations. This lets everyone know who the other fellow is and what he is thinking about. The actual visitation of schools and delegation of responsibilities was stressed by one superintendent who wrote as an effective supervisory procedure: Get into buildings frequently and thus become more sensitive to needs; delegate non-educational duties so 144 the superintendent can devote more time to the edu cational program; coordinate and expedite the work of good assistants. Many similar statements were made. Perhaps one of the most effective and certainly the shortest comment was the one made by a superintendent who said: "Believe in it." VII. STAFF RATIOS Ratio of students to classroom teachers. To deter mine various ratio relationships among school personnel, Table XXV was prepared, showing the ratio of students to teachers. To reduce the list of districts in the total study to a reasonable number, thirty-five school districts with enrollments of 2,941 and over were selected. The ratios referred to full-time classroom teachers and spe cifically excluded any special teachers. The median student-teacher ratio was found to be 26.0 to 1. No consistent pattern was observed, since low student-teacher ratios existed both in districts of 3,000 or 4,000 and in districts of 14,000 and 22,000. The ratios increased in districts with 27,000 and 33,000 pupils to 30.5 and 31.1, respectively. However, the only conclusion that could be reached as to ratios and school district size was that no particular relationship could be observed. 145 TABLE XXV RATIO OF STUDENTS TO TEACHERS IN CALIFORNIA UNIFIED SCHOOL DISTRICTS ENROLLING 2,941 OR MORE PUPILS, 1957-58 District Student Number of full-time Pupil-teacher number enrollment classroom teachers ratio 1 14,826 688 21.6 2 3,100 138 22.5 3 4,539 198 23.0 4 3,640 153 23.8 5 10,704 447 24.0 6 3,024 124 24.4 7 22,850 925 24.7 8 29,814 1,208 24.8 9 12,000 482 24.9 10 6,088 241 25.2 11 6,660 264 25.2 12 2,941 116 25.3 13 3,000 118 25.4 14 11,089 435 25.5 15 3,909 153 25.5 16 10,250 402 25.5 17 22,066 858 25.7 18 8,781 338 Median: 26.0 19 16,750 619 27.1 20 8,156 298 27.4 21 3,737 136 27.5 22 4,378 158 27.6 23 5,875 212 27.7 24 8,200 296 27.7 25 24,349 874 27.9 26 3,365 118 28.6 27 3,671 127 28.9 28 18,412 638 28.9 29 21,409 737 29.0 30 13,065 444 29.4 31 10,918 372 29.4 32 13,700 455 30.1 33 27,310 896 30.5 34 33,953 1,090 31.1 35 10,900 350 31.1 146 The maintenance of a reasonable pupil-teacher ratio is the concern and goal of educators everywhere. Reducing ratios by even one student has important budgetary implica tions which cannot be viewed lightly. At the same time, each individual school district must determine the price it is willing to pay for a ratio of pupils to teachers that best represents the philosophy of the district in relation to its educational goals. Ratio of teachers to administrative-supervisory personnel. Using the same thirty-five districts with enrollments of more than 2,941, Table XXVI was prepared to show the ratio between the number of teachers employed and the administrative-supervisory personnel. All central office personnel responsible for administrative or super visory activities were included in the count for each district. The teachers used for this phase of the study were full-time classroom teachers. Special teachers and non-teaching personnel in such special services as guidance or health were not included. Building principals and other building personnel were also excluded in compiling the number of individuals constituting the administrative- supervisory group. A study of the data represented in Table XXVI reveals that a wide variation existed among the unified districts of California with student enrollments of more 147 TABLE XXVI RATIO OF TEACHERS TO ADMINISTRATIVE-SUPERVISORY PERSONNEL IN CALIFORNIA UNIFIED SCHOOL DISTRICTS ENROLLING 2,941 OR MORE PUPILS, 195?-58 Central office Number of Teacher District administrators classroom supervisor- number and supervisors teachers ratio 3 9 198 22.4 14 19 435 22.9 35 15 350 23.4 6 5 124 24.8 15 6 153 25.6 12 4 116 28.0 13 4 118 29.6 28 21 638 30.4 30 14 444 31.7 5 14 447 32.0 18 10 338 33.8 31 11 372 33.8 21 4 136 34.0 33 26 896 34.5 11 7 264 37.8 32 12 455 38.0 4 4 153 38.4 7 24 925 Median: 38.6 2 3.5 138 39.2 10 6 241 40.0 16 10 402 40.2 27 3 127 41.7 22 3.6 158 44.0 19 14 619 44.1 23 4.8 212 44.6 24 6.5 296 45.5 20 6 298 49.6 9 9 482 53.6 25 16 874 54.6 8 22 1,208 55.0 26 2 118 59.0 34 17.5 1,090 62.2 17 13 858 66.0 29 10 737 73.7 1 8.5 688 82.0 i 148 than 2,941. The ratios ranged from 22.4:1 to 82.0:1. The districts with larger enrollments and more teachers did not necessarily have more professional personnel for pro viding leadership; in most cases, they had less. The median was found to be 38.6 teachers to each central office person with administrative-supervisory responsibilities. Again, as was found to be true with the pupil- teacher ratios, there seemed to be no particular pattern relating to the number of teachers and the central office administrative-supervisory personnel. An observation that can be made, however, is that the district with the lowest pupil-teacher ratio had the highest ratio of teachers to central office staff. Moreover, the district with the highest teacher-pupil ratio was found to have had the third from the lowest teacher-central office ratio. The rest of the districts were scattered throughout the range of ratios; it was evident that school systems had chosen a variety of approaches in organizing educational services to meet their peculiar needs. VIII. CHAPTER SUMMARY A survey was made of all unified school districts in California with student enrollments in kindergarten through twelfth grade of 900 or more (exclusive of Long Beach, San Diego, San Francisco and Oakland). Of the eligible districts, fifty-seven or 94 per cent were 149 included in the survey. The types of school district organizations were determined;, as well as the kinds of positions and the number of individuals employed in each. Also established was the length of employment for each group of staff mem bers and the positions to which each was responsible. Respondents, 81 per cent of whom were superintend ents or assistant superintendents in charge of instruction, were asked to state their reactions to each specific ques tion as: (1) factors affecting the supervisory organiza tion in their districts; (2) relationships between super visor and principal, between teachers and supervisory personnel and among supervisory personnel; (3) the degree of understanding held by administrators, special personnel and teachers regarding the supervisory organization; (4) the person to whom teachers were responsible for the re sults of instruction; (5) the extent to which administra tors thought that instructional goals were being achieved; (6) the position responsible for the coordination of in struction in the district; (7) the major strengths of the supervisory organization; (8) ways in which the supervisory organization could be further strengthened; and (9) ways in which the superintendent could influence the establishment of a superior organization in the district. In order to determine the elements which were re sponsible for the strengths and weaknesses of the 150 supervisory organizations, the chief administrators or their assistants were requested to make written suggestions to be later utilized in the formulation of criteria. Also, the active part that should be played by the superintendent in developing a superior organization for supervision was determined. This was done in order that the leadership responsibilities of the chief administrator could be trans lated into criteria relating to supervisory organizations. Pupil-teacher ratios and teacher-central office staff ratios were derived to determine the responsibility load in various-sized school districts. Districts below 2,941 pupils were excluded from the computation, since few personnel in the administrative-supervisory group were employed in the smaller districts. CHAPTER V RESULTS OF INTENSIVE SURVEY OF SUPERVISORY ORGANIZATIONS IN SIX SELECTED UNIFIED SCHOOL DISTRICTS IN CALIFORNIA In this chapter are presented the results of a survey of six unified districts that were selected for detailed study after an analysis was made of the results of the fifty-seven district study reported in Chapter IV. The information used in this section of the inves tigation was obtained by means of two check lists. Includ ed in this part of the investigation were responses from (1) school administrators; (2) special personnel including consultants, and (3) classroom teachers in elementary schools, junior high schools and senior high schools. The results of this intensive analysis of the six selected districts may be considered an extension of the initial survey reported in Chapter IV, for all six school systems participated in the initial survey of unified dis tricts. In each case, the initial respondents in the six districts were a superintendent, a deputy superintendent, and four assistant superintendents in charge of instruction. Each respondent was interviewed personally in his district. These administrators participated further by making all 151 152 arrangements for distributing the check lists and encourag ing participation so that a reasonably representative sampling of the total staffs involved could be obtained. I. SCHOOL DISTRICTS INCLUDED IN THE STUDY Of the six districts included in the follow-up study, three were located in Los Angeles County, one in San Bernardino County, one in Alameda County, and one in Solano County. Table XXVII lists the six districts and their types of organization. It is seen that two employed a 6-2-4 system, two a 6-3-3 system, one a 7-2-3 system, and one an 8-4 system. Enrollments in the districts ranged from 3,365 to 18,412 pupils. The pupil-teacher ratios in the districts ranged from 23.9 to 30.0. Organizational charts. The manner in which the administrative as well as the special personnel were dis tributed in the organizational pattern of each of the six districts are charted in Figures 2 through 7. For the pur pose of this study, only the educational services side of the charts was developed in detail and no attempt was made to complete the line relationships in the business divi sion. The charts do not show the functional relationships but the direct line of authority to the superintendent of schools. The charts were developed from the data submitted by the superintendents or their assistants and by TABLE XXVII SIX UNIFIED SCHOOL DISTRICTS INCLUDED IN THE INTENSIVE STUDY OF SCHOOL DISTRICT SUPERVISORY ORGANIZATION District (coded) Organizational pattern Enrollment Number of classroom teachers Pupil/ teacher ratio A 6-2-4 8,200 296 27.7 B 6-2-4 8,781 338 26.0 C 6-3-3 18,412 638 28.8 D 7-2-3 10,704 447 23.9 E 8-4 3,365 118 28.5 F 6-3-3 13,700 455 30.0 153 154 discussions held personally with them regarding the pattern of district organization. In District A shown by Figure 2, a district in the 7,000-9,999 pupil classification, three persons, in addi tion to building principals, were responsible to the super intendent. These three persons were two assistant super intendents (one in charge of business, the other in charge of educational services) and a director of personnel. In turn, the two major areas under instructional services were special services and guidance services with personnel under each. Three other positions (the half-time curriculum assistant, the district librarian, and the instrumental music instructor) were all directly responsible to the assistant superintendent in charge of educational services. In District B shown in Figure 3, also in the 7,000- 9,999 pupil classification, there were four individuals responsible to the superintendent in addition to eleven principals. The four positions included two assistant superintendents in the business and instructional areas, a director of personnel, and a part-time administrative assistant. The main feature of the organizational pattern was the inclusion of eleven positions (representing four teen individuals) which were directly responsible to the assistant superintendent in charge of instruction. District C illustrated in Figure 4 was a large dis trict in the 16,000-18,999-pupil group in which the 155 FIGURE 2 ORGANIZATIONAL CHART OF DISTRICT A Guidance Coordinator Speech Therapist Remedial Reading Teachers (2) Psychometrist (%) Visiting Teacher Special Services Coordinator Nurses (6) Home Teachers (4) Physician (hourly) ■ Curriculum Assistant (k) District Librarian Instrumental Music Instructor Personnel Director Principals ( 10) SUPERINTENDENT Assistant Superintendent (Business) Assistant Superintendent (Education) Note: Enrollment category: 7,000-9,999 pupils FIGURE 3 ORGANIZATIONAL CHART OF DISTRICT B - Administrative Assistant (part-time) - General supervisors (2) - Remedial Reading SUPERINTENDENT Director of Personnel Principals ( 11) Assistant Sup e r int endent (Education) Administrative Assistant (Part-time) - Secondary consultant teachers (2) - Instrumental Music (2) - Speech Therapist - Home teachers - School nurses - Physician (part-time) - Elementary consultants (2) - Director of Child Guidance Teachers of Mentally Retarded Psychometrist - Director of Instructional Materials District Librarian Note: Enrollment category 7,000-9,999 pupils Assistant Superintendent (Business) FIGURE 4 ORGANIZATIONAL CHART OF DISTRICT C 157 SUPERINTENDENT Assistant Director Director, Assistant Superintendent of Special Superintendent (Instruction) Personnel Services (Business) -Principals (23) Teachers of Mentally Retarded (3) -Music Supervisor Secondary Education Consultant -In-service Education Consultant -Director Physical Education District Librarian Audiovisual Consultant Curriculum Assistants: Industrial Arts Safety Education Library Services Director of Elementary Education Elementary Supervisors (2) Primary Supervisors (2) Vocal Music Instructors (2) Instrumental Music Instructors (2) Speech Therapists (3) Remedial Reading Teachers (8) Psychologist Psychometrists (5) Teachers of Physically Handicapped Home Teachers Attendance Coordinators Attendance Supervisors (3) School Nurses (17) Audiometrist Dental Hygienist Physicians (2) Supervising Nurse Note; Enrollment category 16,000-18,999 pupils 158 superintendent had four individuals reporting to him. These four were an assistant superintendent in charge of business, an assistant superintendent in charge of instruc tion, a director of personnel, and a director of special services. The divisions of instruction and special ser vices were separated. A unique feature of the organiza tional pattern was the grouping of all principals under the assistant superintendent in charge of instruction. Fourteen different positions, including that of the prin- cipalship, were made directly responsible to the assistant superintendent in charge of instruction. In all, thirty- six different persons reported to the assistant superin tendent. Another relatively large system was District D, a district in the 10,000-12,999-pupil classification (see Figure 5). The superintendent had only two individuals who reported to him aside from fifteen principals--these two were the assistant superintendents in charge of business and of instruction. The assistant superintendent in charge of instruction was responsible for directing the work of nine positions which represented ten individuals. The grouping of health and special services personnel under a director helped to divide the leadership responsibilities in the instructional area. A small school system in the 900-3,999-pupil classi fication was represented by District E, as shown in 159 FIGURE 5 ORGANIZATIONAL CHART OF DISTRICT D - General Supervisor - Art Supervisor - Curriculum Coordinator - Physical Education Supervisor - Instructional Materials Coordinator -Mnsic Supervisor (Instrumental) Instrumental Music Instructors (2) -Music Supervisor (Vocal) Vocal Music Instructors (2) - Psychologists Teachers of Mentally Retarded (4) Director of Health and Special Services Principals (15) SUPERINTENDENT Assistant Superintendent in Charge of Business Assistant Superintendent in Charge of Instruction Audiometrist School Nurses (6) Speech Therapists (3) Home Teachers (2) Teachers of Physically Handicapped Note: Enrollment category 10,000-12,999 pupils 160 Figure 6. The organizational pattern for District E was typical of smaller districts wherein no instructional leadership besides that of the superintendent was avail able. Therefore, all personnel were grouped under the superintendent who was the immediate superior officer. An attempt to reduce the number of people reporting to the superintendent was made by grouping the individuals engaged in vocal and instrumental music, physical education, speech and the school nurses under the principals' supervision. District F was in the 13,000-15,999-pupil group (see Figure 7). The unique features of the organizational pattern in District F were: (1) the superintendent had four persons reporting to him--a director of elementary education, a director of secondary education, a deputy superintendent, and a business manager; and (2) the ele mentary principals were responsible to the director of elementary education, the secondary principals to the director of secondary education. Attendance and guidance personnel were grouped under the leadership of the deputy superintendent. The varied patterns of organization illustrated in the six districts herein described were representative of those found in the general study of the unified school dis tricts in California. A detailed study of these six districts was undertaken. Such a study was thought to be basic to an understanding of the problems of communications 161 FIGURE 6 ORGANIZATIONAL CHART OF DISTRICT E -Vocal Music Instructor -Remedial Reading Teachers -Instrumental Music Instructor -Home Teachers (2) -Physical Education Instructors (2%) - Psychologist -Physician (Hourly) -Speech Therapist -School Nurses (2) SUPERINTENDENT Principals (5) Attendance Supervisor (Part-time) Assistant Superintendent (Business) Note: Enrollment category 900-3,999 pupils 162 FIGURE 7 ORGANIZATIONAL CHART OF DISTRICT F -Elementary Principals (16) -Junior High Principals (3) Director, Attendance -School Social Workers -Psychologist -Elementary Consultants ( 2) -Senior High Principal -Supervising Nurse Nurses (9) -Speech Therapist ■Physical Edu cation Con sultant -Director, Guidance -Director, Trade and Industrial Education -Director, Audiovisual Education -Speech Therapist -Home Teachers Business Manager Director Secondary Education SUPERINTENDENT Director Elementary Education Deputy Superintendent Note: Enrollment category 13,000-15,999 pupils 163 and relationships which exist in any public school system, no matter how large or small. The sampling. The six selected districts made a very satisfactory effort in obtaining the cooperation of members of the school staffs in responding to the two follow-up instruments. Table XXVIII reveals that 686 com pleted forms were received, representing 84 per cent of the total number of questionnaires distributed. Eight re turns were received too late to be included in the tabula tions and were therefore not used. The highest number of returns came from a district which returned 98 per cent of its questionnaires in completed and usable form; the lowest number came from a district which returned 65 per cent of the forms circulated among the staff. The two check list forms were distributed to every administrator and supervisor in each of the six districts. Form II was given to teachers by the process of random sampling based on one for every third or fourth teacher, depending on the size of the district. Treatment of the data. Initially, data concerning each of the six districts were tabulated separately in order to obtain the reactions of the staff to the check list items. The statements written by the respondents were recorded and analyzed for their implications for the planning of supervisory organizations. A composite DISTRIBUTION OF RESPONSES TABLE XXVIII FROM DISTRICTS INCLUDED IN THE INTENSIVE STUDY Classification A B D i s t C r i c t D E F Total Forms I distributed (number) 35 45 86 68 17 49 300 Forms I returned (number) 32 34 83 45 15 36 245 Per cent returned 92 75 97 66 88 74 82 Forms II distributed (number) 78 76 141 84 48 94 521 Forms II returned (number) 74 65 138 54 43 67 441 Per cent returned 95 86 98 64 89 71 85 Total number distributed 113 121 227 152 65 143 821 Total number returned 106 99 221 99 58 103 686 Per cent returned 94 82 98 65 89 72 84 165 tabulation of the data reported by all respondents was made for the six districts included in this phase of the study so that the reactions of nearly 700 professional educators could be utilized as a basis for the refinement and devel opment of criteria for supervisory organization. II. CLASSIFICATION OF RESPONDENTS To provide an insight into the composition of the individuals involved in the follow-up study, Table XXIX was prepared. The data show the number of individuals in the study and the positions they held. About one fifth of the 686 participants were administrators assigned to schools or to central office staffs. Classroom teachers constituted nearly two thirds of the total, while special personnel, including specialists and special services members, made up slightly less than one fifth of the total. The balance of respondents were representative of various professional classifications commonly found in unified school systems. Experience in the district. From Table XXIX it may be seen that, with the exception of the administrators, the majority of respondents had worked in their respective districts between four and ten years. This fact was con sidered significant, in that the responses to the check list items were apparently based on a reasonable knowledge of the school system in which the respondents were employed. TABLE XXIX RESPONDENTS' LENGTH OF SERVICE IN THE DISTRICT Length of service Number of respondents, by groups Total Per cent Adminis trators Special personnel T e Ele mentary a c h e r s Junior high Senior high Less than one year 2 6 23 10 10 51 7 One to three years 7 16 56 29 31 139 20 Four to ten years 62 51 ' 108 33 38 292 43 More than ten years 65 36 67 14 22 204 30 Total number 136 109 254 86 101 686 100 Per cent of total 20 16 37 12 15 100 167 In the administrative group, nearly half had worked for ten or more years in the districts represented. Three fourths of the total group had worked in their districts for four or more years. The assumption was made that the group represented a mature, experienced group that could be depended upon for responsible reactions and suggestions regarding their districts' supervisory organizations. Sex. The respondents were almost evenly divided between men and women, as is shown in Table XXX. Although there were no controls to guarantee responses from an equal number of men and women, the results were very gratifying and provided a balance which was considered desirable for this type of investigation. Clarification of positions held by respondents. Data presented in Table XXXI show that the number of admin istrators included in the follow-up study consisted of 136 individuals, or one fifth of the total of 686 participants. Of the group of administrators, school principals made up more than half, while assistant principals constituted one fourth. Other administrators made up another fifth and included such positions as directors of instructional materials, personnel, student activities, deans of boys, and administrative assistants. The respondents classified as special personnel included consultants, counselors, psychologists, TABLE XXX SEX OF RESPONDENTS Number of respondents, by groups T e a c h e r s Sex of respondent Adminis trators Special personnel Ele mentary Junior high Senior high Total Num ber Per cent Num ber Per cent Num ber Per cent Num- Per ber cent Num ber Per cent Num ber Per cent Male 114 17 43 6 50 7 50 7 72 11 329 48 Female 22 3 66 10 204 30 36 5 29 4 357 52 Total 136 20 109 16 254 37 86 12 101 15 686 100 168 TABLE XXXI THE POSITIONS HELD BY RESPONDENT ADMINISTRATIVE PERSONNEL Number Per cent Position of of responses responses Principal 72 53 Vice Principal 32 24 Teaching Principal 2 1 Other 30 22 Total 136 100 170 psychometrists, nurses, speech therapists, supervisors of child welfare and attendance. The various types of con sultants and school counselors each made up about one fourth of the group. The special personnel represented 109 persons, or 16 per cent of the total group. In size this group was similar to that of the administrative group, thus giving a numerical balance to the respondent groups (see Table XXXII). Individuals in special fields related to instruction were assigned duties which placed them in situations where they experienced daily contacts with teachers. Special personnel thus constituted an especially important group, and one which must be considered in the planning of any supervisory organization. They hold a unique niche in the total administrative and supervisory scheme, and their roles and responsibilities are important to the functioning of supervision. Too, the classroom teachers whom they serve must recognize and accept the contributions poten tially possible by members of the special personnel group. There were 441 classroom teachers who participated in this phase of the study, as is shown in Table XXXIII. More than half of the teachers were assigned to the ele mentary grades; the rest were almost equally divided between junior and senior high schools. Classroom teachers constituted about two thirds of the total number of re spondents in the six districts. This distribution was 171 TABLE XXXII THE POSITIONS HELD BY RESPONDENT SPECIAL PERSONNEL Number of Per cent of Position responses responses Consultant 29 27 Counselor 28 27 Psychologist 2 2 Psychometrist 8 8 Nurse 11 10 Speech therapist 4 4 Supervisor of child welfare and attendance 3 3 Other 24 22 Total 109 100 172 TABLE XXXIII LEVELS OF ASSIGNMENT OF RESPONDENT CLASSROOM TEACHERS Teaching level Number of responses Per cent of responses Elementary school 254 58 Junior high school 86 19 Senior high school 101 23 Total 441 100 173 considered a satisfactory over-all personnel ratio. III. OVERVIEW OF SUPERVISORY ORGANIZATIONS In this portion of the investigation, the responses of 686 participants from the six unified school districts are analyzed. The statements to which the administrators, special personnel and classroom teachers responded are sum marized in tables, each one giving the specific statement or question contained in Forms I and II. The responses are reported as percentages of the individuals participating in the study. Whenever appropriate, verbatim responses were included to illustrate the attitude and thinking of the person involved. The development of the supervisory organizations. In the development of any organization, the assumption is usually made that careful and deliberate planning preceded any decisions affecting such a large operation as a public school system. Administrative and special personnel were asked to indicate how the supervisory organization had been developed in their districts. Respondents were asked to check all the statements that were applicable as factors which helped to determine the nature of the supervisory organization in their respective districts. Table XXXIV reports the responses regarding the development of super visory organizations and shows a consistency of agreement 174 TABLE XXXIV THE MANNER IN WHICH SUPERVISORY ORGANIZATIONS WERE DEVELOPED Per cent of responses to the statement: "The present organization for rendering supervisory services has been developed according to . . . Respondent group Adminis- Special trators personnel Philosophy of the district 71 67 Needs of pupils and teachers 70 63 Available personnel in the district 64 56 Financial considerations 55 46 Rapid growth of the district 31 39 Professional surveys 24 27 Small size of the district 3 3 Not certain 6 12 No response 0 0 175 as far as the total personnel of each group was concerned. However, Table XXXV indicates the extent to which the administrative and special personnel agreed or disagreed as to the factors which had affected the organization within their respective districts. In studying Table XXXIV, it may be noted that admin istrative and special personnel both indicated the follow ing to have been the major factors that determined the development of the supervisory organizations: (1) the philosophy of the district; (2) the needs of pupils and teachers; (3) the available personnel in the district; and (4) the financial considerations. About 25 per cent of both groups listed professional surveys as a factor that assisted in the development of the supervisory organiza tion. It may seem strange that a larger percentage of districts did not employ professional specialists to help determine the pattern of supervisory organization, if it may be assumed that a disinterested and highly competent team could view the needs in a more objective manner than a district can view itself. About 50 per cent of all personnel reported finan cial considerations as factors in the development of the organization. One respondent stated: "Regarding the development of the present organization for rendering supervisory services to teachers, all personnel were in on the planning--however, financial considerations made much TABLE XXXV HOW SUPERVISORY ORGANIZATIONS WERE DEVELOPED, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: ■'The has present organization been developed by . for rendering supervisory services Responses by (1) administrative and (2) special personnel, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 Available personnel in the district 82 93 83 56 58 66 76 50 100 40 54 30 Financial considerations 77 73 61 37 29 50 48 35 40 20 77 60 Needs of pupils and teachers 71 73 78 63 80 87 72 55 60 50 69 50 Rapid growth of the district 71 40 44 37 11 55 44 40 0 30 17 30 Philosophy of the district 88 87 78 69 78 74 68 70 60 50 54 50 Professional surveys 65 47 39 19 22 29 4 35 0 30 12 0 Small size of the district 0 0 0 6 0 0 0 0 20 10 0 0 Not certain 0 0 0 25 16 8 0 20 0 10 8 10 1 = responses by administrators 2 = responses by special personnel 176 177 of the planning fruitless." A similar discouragement was expressed by two admin istrators in another district who said: "We are losing supervisors due to financial consideration. We are going downhill in this area as we have three schools with teach ing principals who have limited time for supervision. . . . Present financial limitations are hampering and even retro gressing needed development or continuation of present ser vices. The present outlook is far from encouraging." There can be little doubt that finances are a major consideration in the development of supervisory organiza tions. This must be reflected in the stated philosophy of the district so that funds may be equitably distributed to meet the supervisory needs of the district as well as other demands made upon the budget. Often, the reduction of supervisory staff is one of the first budgetary items to be cut in times of financial stress. From an instructional point of view, it might well be questioned whether the administrator should not seek other ways of reducing ex penditures, rather than reducing services to teachers and thus to pupils. Understanding the supervisory organization. Regard less of the nature of the organization for rendering super visory services to teachers, it must be fully understood by all members of the staff if it is to achieve maximum 178 effectiveness. The data given in Table XXXVI show that considerable misunderstanding of the supervisory organiza tion existed in the representative districts surveyed. When respondents from all districts replied to the state ment on understanding the organization for providing supervisory aid, about one fifth of those in five districts indicated that they had some misunderstandings about it. In one district more than one third of the replies indi cated some misunderstanding of the organization. In each district, regardless of the supervisory pattern, a need for clarification of the organization for rendering supervisory services was evident. By tabulating the replies from the various groups of respondents, Table XXXVII was prepared. From an analysis of the data it may be seen that, as groups, the administra tors and elementary teachers had a better understanding of the supervisory organization than did other teacher groups. Between one third and one fourth of the respondent special personnel, junior and senior high school teachers indicated some misunderstanding. These findings suggest the need for special attention to an orientation of these three groups to the nature and functions of the supervisory organiza tions in the district. In the initial phase of this investigation, the administrators reported that the teachers' understandings were limited concerning the function of the supervisory 179 TABLE XXXVI UNDERSTANDING OF THE SUPERVISORY ORGANIZATION, AS REPORTED BY ALL RESPONDENT GROUPS FROM SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: "Regarding the organization for rendering supervisory services in this district I . District A B C D E F Understand it very well 60 75 72 68 56 59 Have some misunder standings about it 35 23 23 18 20 22 Definitely do not understand it No response 3 2 1 8 19 11 180 TABLE XXXVII EXTENT OF UNDERSTANDING OF THE SUPERVISORY ORGANIZATION, AS REPORTED BY ALL RESPONDENT GROUPS FROM SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the for rendering supervisory T "* A * • » » statement services : "Regarding the organization to teachers in this district, Respondent group Adminis trators Special personnel Ele mentary teachers Junior high teachers Senior high teachers Understand it very well 80 60 77 58 50 Have some misunder standings about it 14 25 16 38 28 Definitely do not understand it 1 1 3 2 12 No response 5 14 4 2 10 181 organization. That these responses were well-founded was borne out in the actual reactions of the teachers them selves. It should be noted here, however, that the lack of teachers' understanding of the organization for rendering supervisory services was quite different from their under standing of the means by which they received aid in their teaching. This fact will be brought out later in the study but is mentioned at this point to indicate the apparent confusion that must exist in the teachers' viewpoint in an area which is of utmost importance to their success in the classroom. A respondent in the special personnel group frankly wrote: "I have some misunderstandings about the super visory organization. However, I feel free to turn to my immediate superiors but some of the teachers do not." Such a situation emphasizes the need for giving teachers a clear explanation both by charts and by actual demonstration in the daily activity of the school just exactly what the administrative and supervisory relationships are and why they exist. As another respondent said: A lack of inter-departmental communication leads to some misunderstandings in how to obtain help in some areas or how far one may go in their own areas. Coop erative departmental meetings at the beginning of each school year would help the new personnel become oriented and review the objectives of a particular program for the experienced personnel. It should be noted that the importance of this point is stressed in the next chapter in which a list of criteria 182 for supervisory organizations is formulated; full recogni tion is given to the importance of understanding by all staff members, and especially the classroom teachers, of whatever pattern of supervisory organization is provided for the improvement of instruction. In this connection, Melchoir stressed the importance for all personnel to know the general scope of their col leagues when he wrote: Only too well do school people know the value that accrues when grade teachers know the job of the high school teacher, and when the high school teachers know the job of the elementary teachers. On the other hand, only too well do they know the lack of unity within many schools that results from ignorance of the other fellow's job. In summary, here is a must for all cooperating school personnel. Each teacher must know not only the job of other classroom teachers but also that of every special and of every supervisor whatever his title. In turn, each administrator and supervisor must know the job of all his co-workers. Details need not be known, cannot be known, but the general phases of work must be. (19 :15) In unified districts, particularly, the need for close articulation between levels of instruction is not only essential; it is expected as a direct result of the process of unification. The manner in which any super visory organization plans for minimizing or eliminating barriers at elementary and secondary levels should be of real concern for administrators responsible for coordina tion of instruction. Understanding the roles of various staff members, then, should be carefully and periodically 183 checked to assure maximum benefits to all concerned. Possible changes in organization. The professional literature dealing with internal organization stresses the need for flexibility and opportunity to make changes as an important and basic principle. In order to determine the degree to which changes in the supervisory organization could be accomplished in the six districts studied, admin istrative and special personnel were asked to indicate the ease with which changes could be made in the supervisory organization in their districts. As is shown in Table XXXVIII, approximately two thirds of both groups stated that changes could be made easily, while 23 per cent of the administrators and 16 per cent of the special personnel stated that changes would be difficult to achieve. That changes would be dependent upon financial considerations was stated by a number of respondents, typified by two administrators who said: "Changes in the supervisory organization would be difficult to achieve because of the financial problem." "Changes in the organization for supervision would be nearly impossible to achieve because of the financial status of the district." However, several respondents indicated that changes could be made if certain conditions existed, even with financial problems: Changes in the organization to render supervisory services to teachers could be made fairly readily. 184 TABLE XXXVIII FLEXIBILITY OF THE SUPERVISORY ORGANIZATION, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL Per cent of responses to the statement: "Changes in the organization to render supervisory services to teachers (if changes were desirable) . . . Respondent group Adminis- Special trators personnel Could be made readily 66 61 Would be difficult to achieve 23 16 Would be nearly impossible to achieve 3 3 No response 8 20 185 This is done by central staff and administrators, usually, I feel that teachers should have more of a voice in it. Master teachers could be utilized and should be used to upgrade course standards. With their help, policies could be suggested to the central staff for adoption to help maintain standards in college prep and low-ability academic classes. One administrator, hinting at the place of internal personnel relationships as they affected the ultimate organization, commented: "Changes in organization can always be made if the right person desires the change; cost is always a factor." Reflecting still another viewpoint, a special con sultant stated: Changes would be nearly impossible to achieve. Finances, plus the definite line dividing elementary and secondary as well as the philosophy that the prin cipal is solely responsible for his school are reasons for the statement. Such a view shows that some members of the staff found the concept unacceptable that the principal alone has responsibility for the supervision of all instruction in his school. In Table XXXIX is shown the composite response of administrative and special personnel to the question of how readily changes could be made in supervisory organizations. It would appear that, with the exception of one district, there was general agreement that changes could be made readily. Nevertheless, in three of the districts there were indications from between one fifth and one fourth of 186 TABLE XXXIX FLEXIBILITY OF THE SUPERVISORY ORGANIZATION, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: ’Changes to render supervisory services to teachers, if desirable . . in the changes organization were D i s t r i c t A B C D E F Could be readily made’ 69 79 72 65 75 25 Would be difficult to achieve 25 15 20 12 10 30 Would be nearly impossible to achieve 0 3 1 0 15 14 No response 6 3 7 20 0 31 187 respondents that changes would be difficult to achieve; these responses, possibly, should be cause for concern in the districts represented. District F, for example, re flected an atypical situation, since the majority of the respondents were certain that changes were out of the question; this reference was due, primarily, to special financial limitations affecting the school system at the time of the study. Flexibility has been consistently regarded by authorities in school administration as a basic principle of organization. Therefore, every effort should be made to establish controls and understandings that assure the retention of flexibility within the organizational pattern. Growth, change in personnel and similar factors will in variably create needs for shifting, rearranging, and even reclassification of personnel. This is as it should be and usually indicates a changing, vigorous, dynamic situa tion which should be welcomed. A static, inflexible, and unchallenging organization which may have "grown like Topsy" could easily discourage initiative and incentive on the part of its members. Somewhere in between these two extremes--constant change and inflexible status quo--lies the position most desired by school administrators. Pro vision for opportunities to make desirable changes should be a vital consideration inherent in whatever organiza tional pattern is provided. 188 Evaluation of the supervisory organization. If the pattern for rendering supervisory services to teachers is to be truly effective, it is essential that periodic evalu ation of the pattern be provided, according to the opinions of many writers in the field of administration. The objec tive appraisal of the organization and of plans for strengthening the organization should be an annual job for the staff. The need for such appraisal was voiced by one administrator who said: "The evaluation of the supervisory organization needs to be intensified due to the current questioning attitude of the times." The administrative and special personnel were re quested to respond to the question as to whether, to their knowledge, the organizations for supervision in their dis tricts were reviewed and evaluated periodically. About two thirds of the administrators and special personnel stated that such periodic reviews were practiced in their districts. The rest of the respondents, however, said that periodic reviews of the organizations were not made, or that they were not certain whether periodic evaluations were made. The findings from this portion of the study indicate a positive need for the establishment of some means for reviewing and evaluating periodically the supervisory organization in every district and in a manner that is known to those directly responsible for its existence--the 189 administrators and special supervisory personnel. An administrator said: "If a review of the organization is made, it should be made available to teachers and adminis trators of the individual schools." A supervisor in the same school district remarked: The supervisory staff has quite an effective plan for continuous evaluation but has no functional working relationship with the principals or administrative staff; the administrative council is the only group where they all meet, and it exists for other purposes than policy development and cooperative planning. A teacher in a junior high school who was apparently familiar with the development in his district made the observation: "Our supervisory organization is superior. We are given credit for our ’know how’ and are treated as adults; this is important." The problem of finances was stressed by two respond ents who said: To a certain extent an evaluation of the supervisory organization has been true in the past but in recent years our financial situation has dictated nearly everything we are able to do and is now beginning to extend even to the classroom teacher. Our present supervisory organization is highly inadequate; financial restrictions make expansion im possible; further reduction of staff will probably eliminate the remaining two consultants. Stating what undoubtedly is the practice in many districts where limited finances restrict the hiring of adequate personnel, one supervisor said: "We evaluate and review the organization mostly in the light of how we can get more results with the same personnel." The role of high school department chairmen in the total pattern of supervisory organization was emphasized by one administrator who said: Department chairmen should have a real part in a review and evaluation of the supervisory organization. At present, it is only an informal review as daily problems dictate plus a formal, written (but too brief) rating of a department's staff members for salary increases and the annual retention or dismissal recom mendations to the principal. In the same district a statement by one of the special personnel respondents reflected the attitude of the professional literature as well as a number of other respondents: "I'm not certain if the supervisory organiza tion is reviewed periodically but if it isn't it should be." The evaluation of any activity, and especially supervisory organizations, is usually a difficult and com plex process. However, because of its impact on the total educational program, school administrators continually seek every available means for weighing the strengths and weak nesses of their supervisory organizations. Districts should develop their own bases for evaluation well in advance in order that attainable goals are known and understood. 191 IV. INSTRUCTION AND THE SUPERVISORY ORGANIZATION The professed purpose of school district supervisory organization is to improve instruction. Various aspects of supervisory organizations were studied for their effects on the program of instruction. The articulation between levels of instruction, the teachers' responsibility for results of instruction, teaching methods, and staff confer ences for strengthening teaching are related aspects which were studied. These are reported in this portion of the investigation. Supervisory organizations and articulation. One of the greatest strengths of a unified school system of organization is its ability to provide a relatively smooth articulation from one level of instruction to another. Areas of particular concern are usually encountered between the elementary and junior high school levels, as well as between the junior and senior high schools. Administrators and special personnel were asked to indicate the degree to which the supervisory organization made possible the articulation between various levels of the instructional program in their districts. From Table XL it will be noted that one fifth of the administrators and 12 per cent of the special personnel believed that articulation between levels was highly satisfactory. About half of the administrators 192 TABLE XL ROLE OF THE SUPERVISORY ORGANIZATION IN DEVELOPING ARTICULATION BETWEEN GRADE LEVELS Per cent of responses to the statement: "The degree to which the supervisory organization makes possible the articulation between various levels of the instructional program . . • Respondent group Adminis- Special trators personnel Is highly satisfactory 20 12 Is satisfactory 45 39 Indicates that improvement is desirable 33 33 No response 2 16 193 and one third of the special personnel thought that articu lation was satisfactory. The fact that exactly 33 per cent of both groups believed that improvement in this important area of instructional continuity was desirable would appear to point toward a need for strengthening this phase of the organizational pattern for rendering supervisory services. As one administrator said: "There needs to be more under standing between sixth and seventh grade and between eighth and ninth or high school." Other administrators showed a similar concern and need for better articulation: "Through K-6, the articulation is good; but from K-12, improvement is needed." "Articulation is better at the junior high level than at the senior high; would be better if there was more agreement on basic school philosophy." The lack of knowledge regarding programs at levels other than those on which the individual functions was deplored by the administrators in the same district when they observed: "The elementary supervisors have indicated their lack of information on secondary supervisory organi zation." "I do not know exactly what is going on in the elementary field, but have heard that curtailment has been proposed. I would certainly oppose this" (a junior high school principal). A supervisor also pointed to the need for depart mental articulation in the same subject: "There is prac tically no contact between the departments in junior high 194 and their counterparts in senior high." From the evidence obtained, there is an apparent need for more positive efforts and guidelines to improve the instructional program in unified districts by develop ing better processes to facilitate articulation between various segments of the total instructional program. How this is done remains a constant challenge to unified school districts. Potentially, at least, unified districts have unique opportunities for close articulation between in structional levels. The question of the type of leadership provided for coordination and articulation through some form of supervisory organization is one of the chief con cerns of this investigation. Attainment of instructional goals. One measure of the success achieved by supervisory organizations is the degree to which the instructional goals of the district are being attained. Such attainment could be measured in vari ous ways (the results of standardized tests, the morale of the total staff, professional activities of the staff, and others). It was deemed adequate for the purpose of this investigation to ask administrators and special personnel to use their professional judgment in response to a state ment which was to reflect the degree of satisfaction they felt regarding the attainment of instructional goals in their districts. One administrator voiced the concern of 195 many when he said: Improvement is desirable in the organization in order to reach the instructional goals of the district. We are growing. We have approximately the same number of supervisors today that we had when we were half this size. About half of the administrators and special person nel felt that the attainment of instructional goals was satisfactory. Only 16 per cent of both groups responded that the degree of attainment was highly satisfactory. One third of the administrators and a fourth of the special personnel indicated that improvement in the supervisory organization was desirable if better attainment of instruc tional goals was to result. That this improvement was related to the form of supervisory organization was empha sized by one administrator who commented: Achievement of the district's objectives lags due to failure, to a greater or lesser degree, for all people concerned to be aware of their specific role in the organization. One means by which the instructional goals of the district could be reached was suggested by another admin istrator who said: To aid in the attainment of the instructional goals of the district, more workshops in the field of in structional improvement for both principals and teach ers would be most helpful. A supervisor, feeling that some principals were not able to keep in touch with instruction because of insuffi cient time allocated for the demands of their assignment, stated: 196 In terms of the results of instruction, the princi pal is not always aware of what is going on in the classroom. Some do not visit classes enough to find out. Some principals need to know more about specific teaching techniques. From the responses obtained, there was evidence that unanswered questions existed in the minds of one third of the administrators and one fourth of the special personnel, both of whom believed that improvement was desirable for the attainment of instructional goals under existing super visory organizations. Written supervisory plans. By "supervisory plans" was meant the written plans of activities designed to assure a systematic and continuous improvement of instruc tion. An attempt was made to determine requirements which were the rule or exception among the administrators and special personnel in the six districts. An analysis of the responses showed that no requirements for written plans existed in most cases. In one tenth of the cases, adminis trative and special personnel were required to have such plans. One supervisor saw the value in being required to have some type of written plan: "I feel a written super visory plan for the activities in my area of responsibility would be good to help us define our area of activity as well as responsibility." Another supervisor observed: "Although not required to have a written supervisory plan, a monthly report of 197 what was done is required which in effect becomes a plan." The possibility that written plans by supervisors might assist in their relations with principals was pointed out by two respondents who remarked: Although not required to have a written supervisory plan, perhaps a uniform way for consultants to work in all schools would help. Now, consultants in our dis trict, when out in the field, are responsible to the principal in whose school they are working, and operate according to that principal's philosophy. We work in each building in ways requested by teach ers and the principal. This could be improved in some buildings. The principal is not often aware of the type of request from the teacher. There also needs to be more follow-up by the principal. In another district the possibility of being re quired to make out some written plan was looked upon with concern by the supervisor who complained: I'm not required to have a written supervisory plan. We are spread so thin that it is impossible to do more than take care of emergencies plus a couple of long- range plans such as reading and social studies courses of study now in progress. In practice instructional leaders were not required to have written plans for their activities, even though some form of written lesson planning for teachers is as sumed to be a general practice. The lack of formal plans in writing by instructional leaders may be questioned as a situation which exists in modern systems of education in a state recognized as a national leader in many aspects of public school administration. Such a problem is one that is basic to this investigation as criteria are sought which 198 may be used as a framework relative to the supervisory organization and its related aspects. Teachers1 responsibility for instruction. The administrators in the six districts had all indicated in their responses to the initial questionnaire that teachers at every grade level were responsible to the principals for the results of instruction in regular academic sub jects. However, the data shown in Table XLI reveal that the respondents were not in agreement with their chief administrators or assistant superintendents regarding the persons or positions to whom teachers were responsible for instructiono In District D, as a matter of fact, only a third of the total staff reported that teachers were re sponsible to the principal for the results of instruction in regular academic subjects. In only two districts, A and F, was there any indi cation of agreement between the general survey response and the results of this intensive follow-up study in regard to subject responsibility; 76 per cent and 79 per cent, re spectively, stated that the teachers were responsible to the principal for the results of instruction in regular academic courses. The fact that about one fifth of the respondents in Districts C and D indicated that they were "not certain" or chose not to respond to the question may also be indicative of the confusion and lack of TABLE XLI PERSON TO WHOM THE TEACHER IS RESPONSIBLE FOR THE RESULTS OF INSTRUCTION, AS REPORTED BY ALL RESPONDENT GROUPS FROM SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: 'For the results of instruction in (1) regular academic sub jects and (2) special subjects, the teacher is responsible to the . . . Responses concerning (1) regular and (2) special subjects, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 Principal 76 80 54 55 65 49 38 38 59 53 75 54 Supervisor 1 1 0 0 0 3 12 11 0 0 0 2 Department chairman 0 1 9 8 0 3 0 0 4 2 1 0 Assistant superintendent and principal 5 0 3 0 0 0 0 0 5 2 0 0 Principal and supervisor 0 0 4 4 4 7 19 19 0 5 0 0 Principal and department chairman 0 0 11 8 3 0 6 5 25 11 0 3 Other 11 8 11 10 6 19 8 8 1 1 4 8 Not certain 0 4 3 2 2 3 3 3 4 6 12 9 No response 7 6 5 13 18 16 14 16 2 20 8 24 1 = regular academic subjects 2 = special subjects 199 200 understanding of relationships that exist in this vital area. Making a plea for a coordinator position which did not exist in his district, an elementary teacher said: "An experienced coordinator can do much to strengthen re sults of instruction in the academic subjects." Likewise, a high school teacher in a school where no department heads existed as part of the supervisory organization reported: "I am responsible to the principal for results in the aca demic subjects. There is no department head; there should be such with adequate time for supervision." What should be the role of the department head if such a position is included in the pattern of supervisory organization in school systems? This question and the com plexity of its implications are touched upon periodically in this investigation; it deserves much more scrutiny than is possible in this study and recommendations regarding this matter may be found in the concluding chapter. An administrator at the secondary level had this to say for the responsibility for instructional leadership in a school: For academic and special subjects, every department should have regular meetings for the purpose of evalu ating and improving their instruction; definite reports of what they are doing should be made regularly to the principal or vice-principal concerned. Heads of de partments should assume and exercise more initiative and responsibility for a good departmental program of instruction. 201 Such a philosophy, if taken literally, would place the principal of a school in a secondary and somewhat passive role in regard to the instructional program. Such a role was obviously not what the superintendents and assistant superintendents in charge of instruction believed the principals should assume from their pointed responses made in the general survey of the unified school districts in California. However, one junior high school teacher said: "No principal has ever given me any concrete suggestions or help in my teaching." A statement of this kind points to at least one reason why some teachers do not feel re sponsible to a principal who pays little, if any, attention to the actual classroom program of instruction. When such a condition exists in a school, the teacher is compelled to look elsewhere for leadership and guidance, despite the theoretical source of assistance described in the teachers' manual. A further analysis of the positions to which teach ers were considered responsible for the results of instruc tion in regular subjects was summarized in Table XLII. A careful review of the responses from the various levels of classroom teachers, and from administrators and special personnel, showed a consistent lack of agreement among certain members of the professional staff. Again, more than three fourths of the administrators in the follow-up study stated that teachers were responsible to the school 202 TABLE XLII POSITIONS TO WHICH TEACHERS ARE CONSIDERED RESPONSIBLE FOR THE RESULTS OF INSTRUCTION IN REGULAR SUBJECTS, AS REPORTED BY ALL RESPONDENT GROUPS FROM SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: "For the results of instruc tion in regular subjects, the teacher is responsible to the . . Position Respondent group Ele- Junior Senior Adminis- Special mentary high high trators personnel teachers teachers teachers Principal 80 Supervisor 0 Department chairman 0 Assistant superinten dent and principal 2 Principal and de partment chairman 13 Principal and supervisor 0 Other 5 Not certain 0 No response 0 60 0 6 11 0 12 5 6 70 0 0 10 11 5 2 76 0 1 0 0 6 9 8 41 2 11 16 0 8 4 17 203 principal for the results of instruction in regular aca demic subjects. These reactions were consistent with the initial responses of the chief administrators or their assistants in the general study. This view was also ex pressed by nearly three fourths of the elementary and junior high school teachers. However, fewer than half of the high school teachers felt that they were directly re sponsible to the principal; and fewer than one fifth said that they were responsible to both the principal and department chairman for the results of instruction in regu lar academic areas. The other positions to which teachers felt respon sible for instructional results were directors of elemen tary or secondary education and curriculum coordinators or directors. The situation regarding such special subjects as art, music and physical education was similar to that found for regular academic subjects. The administrators’ re sponses in the initial questionnaire of the general study indicated that teachers were responsible to the principal for the results of instruction in these special subject areas. However, from Table XLI it may be seen that the only district which seemed to conform to the administra tor's initial response was District A, where four out of five members of the staff reported that teachers were responsible to the principal for the results of instruction r 204 in special areas. Table XLIII shows the composite results when the reactions of the five groups of respondents from the six districts were grouped. Three fourths of all administra tors believed that the principal was the person to whom teachers were responsible for results in special subjects. About half of the special personnel, elementary and junior high school teachers felt that some position other than that of the principal was the one to which the classroom teacher was responsible. Only one third of the high school teachers stated that they were responsible to the principal for the results of instruction in special subjects. The fact that another third of the high school teachers did not respond to the statement was interpreted, in view of some of the written comments, as meaning that teachers either did not know or thought that, since they were not teaching in a special field, the statement did not pertain to them. The observation should also be made that 14 per cent of the elementary teachers believed that they were responsible to both the principal and the supervisor for the results of instruction in special fields. Relationships which result from dual responsibility are covered in a later section of this chapter, but obvious problems could easily occur unless clear understandings concerning ultimate responsi bility for instructional results are clearly indicated. Specific reactions by elementary teachers to 205 TABLE XLIII POSITIONS TO WHICH TEACHERS ARE CONSIDERED RESPONSIBLE FOR THE RESULTS OF INSTRUCTION IN SPECIAL SUBJECTS, AS REPORTED BY ALL RESPONDENT GROUPS FROM SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the tion in special subjects, statement: the teacher "For the results of is responsible to the instrue- I * . • • • • Respondent group Position Adminis trators Special personnel Ele mentary teachers Junior high teachers Senior high teachers Principal 77 55 58 51 33 Supervisor 2 1 8 3 1 Department chairman - 3 - - 8 Assistant superin tendent and principal 1 2 - - - Principal and depart ment chairman 6 7 - - 8 Principal and super visor 2 6 14 3 4 Other 11 14 8 8 6 Not certain 2 3 7 2 7 No response - 9 5 33 33 206 consultants in special fields are symbolized by statements made by a number of respondents, as follows: If possible, a specialist, who is not an area super visor could, at intervals, set up a program with indi vidual teachers geared to the particular problem in question. The teacher still being responsible directly to the principal in special subjects as well as regular academic subj ects. Another said: "In the special subjects, I feel that I should be responsible to an expert in the field in ques tion." To shift the entire responsibility to someone else was a characteristic manifested in a number of comments. One teacher replied: "I would benefit from the assistance of an art and music supervisor who came at regular times and taught the class." The reaction of one of the respondents in the special personnel group was interesting concerning the shortcomings of the building principal in understanding the special fields he tries to supervise: The principal is, technically speaking, responsible for results in special subjects. However, the art and music people seem to be "blamed" at times. For weak nesses in these areas, I think our principals need to know more about these fields. Another respondent in the special personnel group, in an attempt to explain how a number of individuals may be considered mutually responsible for the results of instruction in special subjects, stated: The teacher is responsible to the principal for special subject results. The principal may delegate the responsibility to the vice-principal or department heads--any of whom, on occasions, confer with the 207 consultants and sometimes have meetings to include the consultants. An administrator summed up the situation as follows: The responsibility of the classroom teachers for special subjects is hazy" in the minds of the class room teachers. Some conflicts in the past which resulted from supervisors seeking line functions. An elementary teacher pin-pointed the crux of the problem of unclear supervisory responsibility when he said: "As to the results for special subjects, to my knowledge, no one checks my results." Another elementary teacher tried to clarify his thinking in the area of relationships by saying: In working on a particular project with a super visor, I feel some responsibility to her. But in all subjects, my closest association and thus responsi bility is with my principal. I find this more than satisfactory. In areas of both special and regular subjects, there was an obvious lack of understanding of the person or position to which the teacher must answer for the results of instruction. Therefore, specific criteria are needed which may eliminate or definitely minimize any confusion concerning this important phase of the supervisory organ ization . Teaching methods. Two questions were posed by the investigation in an attempt to ascertain (1) how agreements on teaching methods were reached, and (2) the sources of leadership and direction on teaching methods utilized by 208 teachers. To find answers to the first question, administra tors and special personnel were asked how the principals and supervisors resolved any differences of opinion on the uses of various methods of instruction. Two major ap proaches were reported. Both groups agreed that confer ences between the principals and supervisors generally resolved any problems that arose. Conferences which empha sized the review of district policies were the second means used to settle differences that arose. The resolution of specific problems was of concern to one junior high school teacher who said: As to methods I follow, there needs to be more interaction on specific problems between teachers with the feeling that conclusions will have value in form ing subject-area policy. A supervisor in another district, feeling the frus trations resulting from many different approaches to teaching methods, discouragingly observed: Agreements regarding teaching methods are hardly ever reached in my particular school. Their (teach ers') philosophies are so far apart that it has re sulted in useless antagonism all the time. The confusion that could result from too much free dom of choice regarding methods of instruction was men tioned by a high school teacher who said: "Sometimes I think teachers have too much freedom on methods. A little more control might help." In his comments, an administra tor recognized the fact that undirected teachers, who are 209 sometimes looked upon as immune from supervision, need attention: I think we are weak in teaching methods and tech niques. Too much of the attitude exists that the teacher is a specialist and should not be interfered with. I don't know that this is done at all in our school. To obtain information concerning the sources upon which teachers depended for help in determining the in structional methods to be used, classroom teachers were asked to indicate the person to whom they looked for such direction. As shown in Table XLIV, more than a third of the elementary teachers sought direction from their princi pals; nearly half of the junior high school teachers also looked to the principal for direction; however, only 10 per cent of the high school teachers responded in like manner. Elementary teachers reported that the principal, together with the supervisor, constituted the next most frequent source of direction on methodology. Among the junior high school teachers, one fifth listed the principal and super visor as another source of direction and a similar number indicated other sources, such as teachers, directors of instruction and curriculum coordinators. High school teachers named department chairmen or other supervisors as individuals to whom they looked for direction; 22 per cent of the high school teachers stated that both the principal and department chairmen, together, constituted a main source of direction. The fact that one fifth listed other 210 TABLE XLIV SOURCES OF DIRECTION ON TEACHING METHODS, AS REPORTED BY TEACHER GROUPS Per cent of responses by teachers to the statement: ''Regard- ing teaching methods, I generally follow instructions given by the . . . Respondent group Elementary Junior Senior Position school high school high school teachers teachers teachers Principal Supervisor or consultant Department chairman Superintendent or his assistant Principal and supervisor Principal and department chairman Principal and superin tendent or his assistant Other Not certain No response 39 45 10 12 1 9 0 0 11 3 2 1 28 15 8 2 7 22 3 2 0 12 18 20 1 2 8 0 8 11 211 teachers, curriculum workers and similar positions as sources of instructional guidance seemed to indicate that the principal played a relatively minor role in the direc tion of instructional methodology. This fact is consistent with that found earlier in the investigation when only 41 per cent of the high school teachers reported that they were responsible to the principal for the results of in struction in regular academic subjects. An elementary teacher pointed to the problem faced by the new teacher when joining a staff: "Sometimes prin cipals, consultants and older teachers do not agree on methods and policies. Commands and counter-commands are bewildering, especially to new teachers." Another elemen tary teacher recognized the difference in relationships between the principal and supervisor as he considered teaching methods: My principal is familiar with children in my class, my teaching techniques and capabilities, etc.; there fore, she can instruct me with competence and show a personal interest in results. A supervisor has many experiences but is limited due to the great number of teachers under her care. In the same district another elementary teacher reiterated the problem of supervisor versus principal in the matter of giving suggestions concerning teaching methods. "The proximity of the principal makes his position an available source for suggestions on method; the supervisor is too far removed." 212 From high schools which made use of departmental chairmen as part of the supervisory organization, two teachers who were also department chairmen complained: Under our departmental system, it would be much better if the principal would not confer with indi viduals until the department chairman has been "let in" on what is happening. Regarding methods of teaching, this is not clear to some teachers that the chairman should be consulted before or at the same time new ideas are presented by the teacher to the principal. An administrator admitted: "Each teacher pretty much goes his own way; there is no^ actual coordination within the department." That supervision is accomplished through a process of default is suggested by the comments made by two junior high school teachers, one of whom said: "We receive no instructions regarding teaching methods. One may follow any method he chooses, providing he gets satisfactory results." The other commented: No one has instructed me in teaching methods; I believe that my principal's philosophy is to allow each teacher to function in accord with his own techniques. I also feel that my principal would make pertinent suggestions to any teacher he judged to be in need of them. One of the cherished privileges of most teachers is the freedom to determine the teaching methods to be fol lowed in the program of instruction. Nine tenths of the responses of classroom teachers from elementary, junior and senior high schools indicated a high degree of freedom in selecting teaching methods. 213 One junior high school teacher reflected an attitude detected several times in the written statements of re spondent teachers: Personally, I feel capable of handling my work and I have been most grateful for being allowed to conduct my classes without undue interference. Too much super vising makes me decidedly nervous. Another teacher at the same level of instruction and in the same district also commented on the matter of free dom to select teaching methods: "Freedom of method is most important to me. I want no interference. I want to do my job extra well." A high school teacher from the same dis trict commented: The high degree of freedom in adopting individual teaching methods is one of the strongest features of any profession and certainly one of the greatest attractions in our high school. Variations in the degree of freedom in selecting teaching methods was pointed out by an elementary teacher who pleaded for confidence and trust on the part of the building principal: Freedom as to methods depends on the principal. This year I use my own initiative and get help from my fellow-teachers. Former principals demanded a "pattern." I am a better teacher when I feel I can be trusted to use my own initiative. Within the same district, two elementary teachers, apparently experiencing different reactions with district personnel, said: "One of the great strengths of our dis trict is the freedom given teachers to try new things and to develop initiative in being creative." 214 The other, in complete contrast, observed: I feel limited in my freedom to develop my own initiative. I feel a need for more freedom to teach in a manner comfortable to me rather than planned procedures set up by the district. A third, making a differentiation between freedom to use one's own methods and the creativity permitted teachers, observed: The "degree" of freedom is good, but creativity of teachers is limited. Principals feel that veterans know the answers and should not need the help new teachers do. "If you don't know after five years, when will you ever learn" attitude. A principal reported how he attempted to keep in formed of his teachers' techniques of instruction and plans: Regarding teaching methods and techniques, teachers individually have a conference with the principal at approximately eight week intervals. At this time, the principal reviews with the teacher: (1) what has been taught; (2) what will be taught during the next period. Before the beginning of school, each teacher in a meet ing with the principal gives an overview of the work to be covered during the year and methods discussed. Two junior high school teachers mentioned a differ ent aspect of the problem of freedom in selecting one's own methods of teaching. One, commenting on the problem of teacher-parent relationships, said: There is freedom for individual teachers' ideas in methods, etc., but for the past ten years a growing problem of too much parental interference and a great decline in their cooperation and respect for our pro fession has developed. The other teacher, sounding a more encouraging and appre ciative note, stated: 215 I feel a high degree of freedom in determining methods and using my own initiative which I feel is due to the constant encouragement, faith and interest shown by my principal. Two high school teachers in the same district made the following comments: "While it is pleasant to have complete freedom, departmental conference should result in more conformity." "I feel a high degree of freedom in methods and use of my own initiative--some of the values of n£ supervision." The extent to which there must be differences of opinion among teachers is known, but uni formity may surely be kept in proper perspective without destroying initiative or developing in teachers frustra tions regarding methods of instruction. Participation on vertical committees. One of the frequently mentioned advantages of a unified school system is the opportunity for vertical as well as horizontal planning of the instructional program. The supervisory organizations in unified districts should be expected to encourage the participation of the staff on committees. Check list questions were designed to obtain infor mation regarding the degree of staff participation on vertical committees, as viewed by the five groups of re spondents. Approximately two thirds of all staff members had participated in some phase of vertical planning of instruction. Respondents represented administrators, special personnel, and elementary, junior and senior high 216 school teachers, indicating a broad scope of participation. The data indicated that all six districts provided good opportunities to staff members to work on vertical commit tees. One respondent remarked: Regarding vertical curriculum committees, I believe this to be one of the most important and satisfactory functions I have performed in the past year. I believe all personnel in my area would benefit by participating in this manner. Administrators generally work hard to obtain broad staff involvement in appropriate professional activities. That this was being accomplished to a satisfactory degree in the six representative unified school districts seemed to be well established. In-service staff conferences. One effective means of communication with various segments of the total staff is usually accomplished by conferences and various types of meetings. At administrative and supervisory levels, con ferences were found to be primarily on an "on call" basis, but other periodic schedules were also found. Teachers were surveyed to determine the frequency of grade-level or subject-area meetings. There seemed to be about an equal distribution between meetings that were held periodically and those that were held on an "on call" basis. The value of such meetings was questioned by one teacher who remarked: "These grade-level meetings are of very little help. The ones I have attended were organized 217 after the meeting was under way." Another elementary teacher observed: Grade-level meetings must be functional as well as a pool for new ideas. If they are necessary, they will succeed. If they are mere formalities, they will be staid and meaningless. Another observation of the futility of some meetings was expressed by another teacher who said: "We need more organization for grade-level meetings. Many meetings seem to be held just to say we have met." However, a more positive view was expressed by an elementary teacher who stated: When a need and interest in a subject area arises, workshop-type meetings often are held; resource people invited to share problems. We could have grade-level suggestions sent out from time to time of new things to try since consultants are more aware of specific improvements in their fields. The leadership role of teachers themselves was suggested by one respondent: "I feel we have great strength in our grade-level meetings. More district-level meetings would help which could be run by teachers with the help of con sultants." Two additional ideas that had implications for organizational planning were expressed, as follows: I feel that grade-level bulletins consisting of suggestions and experiences in successful teaching techniques in certain subjects would be more valuable than having meetings where few actually feel free to speak up. Grade-level meetings within a school and between schools for pooling ideas and techniques are excellent. Good ideas should be printed in manuals by subject 218 areas and copies given to all teachers concerned. A junior high school teacher pleaded for real pur pose in meetings: "Grade-level meetings usually cover too general an area with vague conclusions at the end. A feel ing that we have interacted, but what for?" A valid pur pose for such meetings was suggested by a high school teacher who said: I feel subject matter taught in English classes should be closely evaluated as to its values to a student. Too often there is emotional disagreement on subject matter rather than objective evaluation. From an analysis of the comments made regarding the meetings and conferences of the professional staff, there appears to be a serious need for a close appraisal of the purposes of the meetings so that they rndy be considered an effective tool and an integral part of the supervisory organization. V. PERSONNEL AND THE SUPERVISORY ORGANIZATION Nature of administrative and special positions. Administrative and special personnel groups were asked to indicate what each considered to be the nature of his posi tion with respect to line, staff or combination of organi zational relationships. The purpose of this part of the inquiry was a determination of the manner in which respond ents in the six districts (involving 109 special personnel 219 and 136 administrators) would classify their own positions and functions. Their responses showed that the great majority (93 per cent) of the administrators considered themselves either line or both line and staff. There seemed to be little doubt in the minds of the administra tive group as to the real nature of their positions in the pattern of organization. In the special personnel group, the positions con sisted of consultants, counselors, psychology workers, nurses and similar positions. However, even though 61 per cent considered themselves to be staff persons, 9 per cent responded that they were line in relationships, while another 19 per cent claimed they were both line and staff. In other words, about one fourth of the group, which is advisory by the very nature of their position, responded that they had administrative responsibilities or considered their function to be administrative as well as advisory. The responses of both groups in each of the six dis tricts are shown in Table XLV. An examination of the data shows that in District A, 47 per cent of the special per sonnel considered themselves to have administrative rela tionships; and in District B, 56 per cent of the special personnel considered themselves to be both line and staff. One of the major problems confronting a superintend ent of schools is to make sure that administrative and special personnel staff are completely clear as to the TABLE XLV ANALYSIS OF THE NATURE OF STAFF POSITIONS, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: ':I consider the function of my position to be U ■ Responses by (1) administrative and (2) special personnel, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 Line (administrative) 35 47 21 6 53 0 28 0 20 0 31 0 Staff (advisory) 6 40 6 32 0 76 20 55 0 80 5 80 Both line and staff 59 0 67 56 47 8 52 40 80 10 62 0 No response 0 13 6 6 0 16 0 5 0 10 2 20 1 = administrative personnel 2 = special personnel 220 221 nature of their positions. Teachers often gain the impres sion that the staff members assigned to assist them with instructional problems and to serve them in an advisory capacity tend to assume a mantle of administrative author ity. An administrator who should be expected to recognize his position in the organization admitted: "Though I con sider my position to be both line and staff, the relation ship is not clear-cut in my mind or in the teachers’ minds." In another case involving a staff person in the special personnel group, a problem related to parental understanding of the difference in relationship was ex pressed as follows: "The superintendent considers my job as staff (advisory). However, parents do not and this needs to be clarified to them." When staff relationships are understood and when duties assigned are effectively performed, a reaction similar to the following may be expected: "I consider my position to be advisory or staff in nature. It is grati fying to have teachers discuss problems with me." Clarification and understanding of the nature of such position in the supervisory organization is a goal which must be achieved before effective use can be made of personnel. Teachers can be made to understand the differ ence between line and staff if the members of the superin tendent’s staff first understand the nature of the position. 222 Coordination of the supervisory program. In a uni fied system, as in all school systems, the coordination of supervision by the administration is of vital concern to the effective operation of supervisory services at all levels. One person should be designated by the superin tendent to provide continuity of instructional emphasis; and the description of the supervisory organization should clearly indicate which position carries such responsibil ity. Note should be taken (see Figures 2 through 7) that in Districts A, B, C and D, assistant superintendents in charge of instruction were employed; in District E the superintendent was the sole district-wide administrator, and in District F a deputy superintendent was employed, with a director of elementary education and a director of secondary education serving under him. District C also employed directors of elementary and secondary education, in addition to an assistant superintendent in charge of instruction. Administrators and special personnel were asked to indicate the position in their districts which carried the main responsibility for the coordination of the supervisory program. Table XLVI shows the responses, by districts, and the leadership role in supervisory coordination played by the assistant superintendent in charge of instruction. In districts employing an assistant superintendent in the instructional field, responses ranged from 100 per cent to TABLE XLVI THE LEADERSHIP POSITION IN THE COORDINATION OF SUPERVISION, AS IDENTIFIED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: r i The position in the district that carries the main responsi bility for coordinating the supervisory program is the . . Responses by (1) administrative and (2) special personnel, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 Superintendent 0 0 6 13 29 3 4 15 100 70 23 20 Assistant superintendent 100 86 94 63 58 81 84 70 0 0 8 55 Superintendent and principal 0 0 0 0 0 0 0 0 0 10 4 2 Other 0 7 0 6 13 13 16 15 0 20 57 17 No response 0 7 0 18 0 0 0 0 0 0 8 6 Uncertain 0 0 0 0 0 3 0 0 0 0 0 0 1 = administrative personnel 2 = special personnel to t o 224 58 per cent in their agreement that the position of assist ant superintendent carried the main responsibility for the coordination of supervision. Among the special personnel, the percentage of those who reported that the assistant superintendent was the coordinator of supervision ranged from 86 per cent in District A to 63 per cent in District B. It was of interest at this point to review the initial responses given to the general questionnaire as described in Chapter III. It will be recalled that the responses were made by assistant superintendents in charge of instruction in Districts A, B, C and D; by the superin tendent of District E; and by the deputy superintendent in District F. In Districts A to D, inclusive, all four assistant superintendents listed their own positions as coordinating the supervisory program. In District E, the superintendent stated that he himself coordinated supervi sion. The respondent from District F who held the position of deputy superintendent said that no one position carried the responsibility for coordinating the supervisory pro gram. This response from District F was verified by the fact that 57 per cent of the administrative staff stated that positions "other" than those listed were responsible for the coordination of supervision. While 55 per cent of the special personnel said the deputy superintendent coor dinated supervision, another 39 per cent agreed that some "others" were also involved. 225 One inconsistency occurred in District C where only half of the administrative personnel stated that the assistant superintendent in charge of instruction coordi nated supervision; the individual who responded in the initial study stated that he himself was responsible for coordination. A study of the organizational chart of District C (see Figure 4) illustrates the line arrangement that was apparently interpreted by the personnel involved as responsibility for coordination of supervision for ele mentary education, as separate from secondary education. Responses of all administrative and special person nel groups from all six districts were grouped in order to determine the over-all responses as to the responsibility for coordination of supervision. From Table XLVII it may be seen that one fourth of the administrators and one fifth of the special personnel stated that the superintendent held the main responsibility for coordination; half the administrative and special personnel reported that they considered the assistant superintendent in charge of in struction as having that responsibility. Less than one fifth of the administrators and special personnel pointed to "others” (which included elementary and secondary directors and curriculum coordinators) as those responsible for coordination of supervision. As in other areas of relationships and responsibili ties in the supervisory organization, leadership for the 226 TABLE XLVII THE POSITION PROVIDING LEADERSHIP FOR THE COORDINATION OF SUPERVISION Per cent of responses to the statement: "The position in the district that carries the main responsibility for coordinating the supervisory program is the . . . Respondent group Adminis- Special trators personnel Superintendent 27 20 Assistant superintendent 57 55 Superintendent and principal 0 2 Other 14 17 No response 2 6 227 coordination of supervision must be clearly stated and understood. In the school systems with only the superin tendent as the educational leader at the district level, few questions are likely to arise. However, as assistant superintendents, directors of instruction and curriculum coordinators are added in a school system, the need grows for clear designation of the position which is to carry the responsibility for coordinating the supervisory program. Frequency of review of job responsibilities. Admin istrative and special personnel were requested to indicate the frequency with which job responsibilities were re viewed, the assumption being that such reviews are instruc tional in impressing performance on the job. In Table XLVIII is given a summary of the responses for the six dis tricts. With two possible exceptions, most districts had participated in a review either during the year or during the last two years. The value of periodic reviews was expressed by one administrator who said: In the area of reviewing job responsibilities, I personally feel this is one of the strengths of this district. Each administrator knows exactly what his responsibilities are to the district, staff, non certificated personnel and to the community. A timely review of job requirements was suggested by a high school administrator when he said: "There should be a com plete review of each job specification prior to opening of school in the fall." TABLE XLVIII FREQUENCY OF REVIEW OF JOB RESPONSIBILITIES, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: :‘ A review of my job responsibilities was discussed with me by my immediate superior . . .ri: Responses by (1) administrative and (2) special personnel, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 This year 47 80 79 87 62 56 60 75 60 80 40 40 Within the last two years 53 7 21 13 16 26 28 25 20 20 19 20 Uncertain 0 13 0 0 22 8 0 0 20 0 19 20 No response 0 0 0 0 0 10 12 0 0 0 22 20 1 = administrative personnel 2 = special personnel 228 229 The responses from all six districts by administra tors and special personnel were grouped. The totals show that 84 per cent of the administrators reported that their positions had been reviewed within the last two years or during the current year; 88 per cent of the special person nel had received the same review within the two year range of time. For those who had not received a recent review, the comments of two administrators in the same district were typical: ‘'The Director of Elementary Education dis cusses part of my duties as an elementary principal but there should be an annual review." "A review of my job responsibilities should be done yearly, at least. Such has not been true." Written job specifications. A periodic review of responsibilities for administrative and other positions, though essential, would not be long-lasting or clear unless the actual requirements of the position were put in written form. The problem that arises when responsibilities are not put in written form was pointed out by one respondent: "It is the unwritten job specifications that constitute about thirty per cent of the work involved." The value of periodic reviews of job responsibilities at every level of the administrative and supervisory organization as a safe guard so that individuals will not assume tasks never intended for them has been discussed in a preceding 230 section. The dilemma that results when responsibilities are not clearly delineated in writing was expressed by one administrator: "My job responsibilities are known only through board rules and regulations and the administrators' handbook; never verbally except in meetings with other principals." When they were asked whether or not a written job specification existed for their respective positions, nearly two thirds of the administrators and almost half the special personnel responded in the affirmative. The remaining respondents stated that no written specification for their positions existed or that they were not certain. One person, commenting on what he considered the futility of written specifications, said: I do not see how a written job specification would help. There have been attempts in the past to do this but each consultant works differently in each building according to the principal's desires. The variability of duties within the same job assignment was indicated by another individual who said: The job of head counselor seems to vary with each school in the district and with each administrator's interpretation. I believe this is as it should be but each school should have a written job specification. A typical statement was made by an administrator who observed: "Written job specifications would result in greater efficiency and less friction." 231 Availability of time for meeting responsibilities. The demands and pressures under which school administrators and supervisors work are well known to those who experience the daily requirements of these positions. All respondents were asked to consider the adequacy of available time for administrative, supervisory and related duties. First, the administrative and special personnel groups were requested to make a self-analysis of their responsibilities and to indicate whether they considered that adequate time was available for the total demands of their assignments, or to what degree the time was inadequate. The reactions of administrators showed that almost half thought that their time was adequate; about the same number said that it was less than adequate; and about 10 per cent indicated that the available time was very inade quate. In the special personnel group, one third responded that the time for their duties was adequate; another third that it was less than adequate; and the remaining third that the time allowed was very inadequate. Table XLIX was prepared by grouping all responses by districts. The data show the extent to which respondents considered the time allowed for their responsibilities to be adequate. For the administrative group, in three districts (Districts B, C and E) slightly more than half responded TABLE XLIX ADEQUACY OF TIME AVAILABLE FOR RESPONSIBILITIES, AS REPORTED BY ADMINISTRATIVE AND SPECIAL PERSONNEL IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: ! : The is . time available for the total demands of my assignment Responses by (1) administrative: and (2) special personnel, by districts A B C D E F 1 2 1 2 1 2 1 2 1 2 1 2 Adequate 41 26 56 32 60 58 28 25 60 40 23 30 Less than adequate 59 47 44 32 33 29 56 40 20 50 46 30 Very inadequate 0 20 0 36 7 13 12 30 20 10 31 30 Not certain 0 0 0 0 0 0 0 0 0 0 0 0 No response 0 7 0 0 0 0 4 5 0 0 0 10 1 = administrative personnel 2 = special personnel 232 233 that the available time was adequate; in all other dis tricts, more than half of the administrative respondents stated that the time was either less than adequate or very inadequate. The implications of such an admission by these leaders of school systems are important to the leadership and supervision of the instructional program. The situation found among the special personnel was even more striking than that found with the administrators. In only District C did more than half of the respondents state that the time available for their duties was ade quate. The great majority of special personnel replied that the time was either less than adequate or very inade quate for their duties. The written comments made by administrators and special personnel revealed the attitudes of frustration and deep concern of the individuals over the futility of attempting to work effectively under the handicap of time limitations. One said: The time available for my assignment is less than adequate. However, I imagine all in administrative positions feel somewhat similar, so this feeling is certainly not unique. Another administrator in the same district, recognizing the time consumed for teacher evaluation, said: "There is more time needed to evaluate teacher performance." To find time to become familiar with other segments of the program in a unified district, a high school administrator declared: 234 "I would appreciate the opportunity, time permitting, to become better acquainted with the elementary and inter mediate program." The hopelessness of the situation was also expressed by an administrator who said: "The time available for my assignment will never be adequate to do the job properly." A possible remedy for the lack of time provided within the normal school day was found by one respondent in the spe cial personnel group who reported: "I find it necessary to work most week-ends at least part-time and I am above- average in competence in the position." Another individual in the same group but in a different district pointed to the pressures created in a growing district: The time available for the demands of my position is very inadequate because the district continues to ex- pand--and some of the demands continue as of old--while new responsibilities and changes must be met. That routine duties absorb too much time was ex pressed by a principal who wrote: "We need some relief from routine administrative matters so more time could be spent on supervision." An unusual but very pointed reac tion to the time element was given by another administra tor: "I have a wide range of responsibilities and a limited staff; this requires operation on the basis of planned neglect." An over-all review of the comments and responses left little doubt that administrative and special personnel 235 felt that the time available for their duties was entirely inadequate. In an attempt to obtain additional information and viewpoints regarding the adequacy of time, classroom teach ers were asked to respond to the statement: "I feel the supervisory personnel in the district, including the prin cipal, have sufficient time to render needed supervisory help to teachers.” The results of their responses showed that slightly more than half of the elementary teachers, nearly two thirds of the senior high school teachers, and two fifths of the junior high school teachers thought that the administrative and supervisory staff had sufficient time for their duties. On the other hand, the responses also showed that two fifths of the elementary teachers, half of the junior high school teachers, and two fifths of the senior high school teachers believed that their principals and supervisors did not have sufficient time in which to perform their duties, or were uncertain about the matter. The responses of all three groups of teachers are summarized by districts in Table L, in which the variations among the districts are readily seen. As was shown in Table XLIX, for example, in District D about one fourth of the administrative staff and special personnel felt that they had adequate time for their jobs, yet in Table L it is shown that in the same district two thirds of the elementary teachers, nearly half of the junior high school teachers, TABLE L ADEQUACY OF TIME AVAILABLE TO SUPERVISORS FOR GIVING SUPERVISORY AID, AS REPORTED BY THREE TEACHER GROUPS IN SIX UNIFIED SCHOOL DISTRICTS Per cent of responses to the statement: 'I feel that the supervisory personnel in the district, including the principal, have sufficient time to render needed supervisory help to teachers.'1 Responses by (3) elementary, (4) junior high, and (5) senior high school teachers A B C D E F 3 4 5 3 4 5 3 4 5 3 4 5 3 4 5 3 4 5 Yes 49 34 46 60 42 72 54 45 66 66 47 100 54 33 60 64 50 No 29 33 18 23 42 6 35 30 21 28 40 0 18 - 60 31 7 50 Not certain 20 33 36 14 16 22 11 25 13 6 13 0 18 - 7 9 29 11 No response 2 0 0 3 0 0 0 0 0 0 0 0 10 0 0 0 17 3 = elementary school teachers 4 = junior high school teachers 5 = senior high school teachers to U) ON 237 and all the high school teachers believed that their super visors had adequate time for their assigned responsibili ties. In District F, the majority of all teachers felt that administrators and special personnel had adequate time, but this response was in direct contrast to the responses made by the administrators and special personnel. In some districts there appeared to be fairly gen eral agreement among respondents that the available time for duties of principals and supervisors was inadequate, while in others no pattern of agreement was found. The reasons given by teachers for their answers were interesting. One elementary teacher said: I have a principal who is very helpful but many, many times when teachers need him he is attending a meeting. We would have a better school if our prin cipal could spend more time at our school. A junior high school teacher suggested: The principal is forced to spend too much time on discipline and does not have enough time to spend on supervision. The school should have someone else to handle the discipline so the principal could spend the majority of his time on supervision. The problem of the building principal who is deluged with clerical duties was pointed out by a junior high school teacher whose comment was typical of many: It seems the principal and supervisors are very busy and that some way should be devised to free them of some routine demands on their time so more time can be devoted to supervision. An elementary teacher stated emphatically: "No, I do not believe the principals and supervisory staff have 238 sufficient time for rendering help to teachers— they are so busy with meetings and paper work." A junior high school teacher believed that outside demands on the prin cipal were a problem: I feel the supervisory personnel (principals) have sufficient time for their duties. This does not apply to the department chairmen. Too many principals spend far too much time in service clubs and worthwhile organizations which would better be spent in the cor ridors and classrooms of their own schools. Partial solutions for making more time available to the principal were suggested by two teachers who commented: "The principal's administrative duties make it impossible for him to supervise enough. A full-time non-teaching vice principal is needed." "Supervisors should have fewer teachers to meet and visit. We should have full-time vice principals to relieve the principals to supervise." The question of whether "adequate" time is available for any assignment (whether for teaching, administration or supervision) will probably never be determined to the satisfaction of those concerned, for "adequacy" is a rela tive value-concept, and agreement would involve problems of semantics beyond the scope of this study. The point of the matter for the purpose of this investigation is that cri teria should be established concerning the provision of sufficient time for performing the duties of all adminis trative and supervisory personnel, regardless of the supervisory pattern of organization. This is one area in 239 which present practice, as demonstrated in the responses from districts studied, needs considerable clarification in order that both classroom teachers and supervisory per sonnel can feel that a reasonably adequate amount of time is provided for the supervisory services in the district. Provisions for resource personnel. It is seldom, if ever, that districts can afford to employ all the special ized personnel they need for the improvement of the instructional program. Therefore, other means must be found to provide resource personnel for teachers and admin istrators when a need is manifested. One purpose of the investigation was a determination of the extent to which out-of-district resource personnel were employed by the six districts included in the intensive phase of the study. Again, as was found in earlier phases of the study, there existed a marked difference of understanding or lack of communication between administrators and other staff mem bers of the school system regarding provisions for utiliz ing outside resource personnel. While more than four fifths of the administrators and special personnel indicated that provisions were made for obtaining outside resources, only half of the high school teachers recognized that such a service existed, while about one third of the elementary school and junior high school teachers were either not sure or did not think 240 that such services were available. This lack of under standing or knowledge reflects the complex problems con fronting administrators as they plan a supervisory organi zation and make it known clearly to all members of the professional staff exactly which supervisory resources are available, both within and outside the district. The written comments of respondents reflected the reactions of individuals who were aware of the services of outside resource personnel. One teacher mentioned the utilization of rich, untapped resources within the dis trict: "We should use our own personnel more for in- service training and thus raise morale and give recogni tion." Generally, the comments concerning the employment of outside resource personnel for in-service activities were quite favorable. However, an exception was noted by one junior high school teacher who stated: "Out-of-district personnel have been made available but are not realistic in approach." Favorable comments included such statements as, "The use of out-of-district personnel has been most excel lent in our district this year in arithmetic, reading, and music." And: "We have always received assistance from out-of-district people whenever we have asked for it." A realistic suggestion which related to the finan cial aspect of outside resource personnel was made by an administrator: "I think a district fund should be set up 241 to get technical or inspiring speakers for various faculty or inter-faculty groups." It is generally recognized that outside resource personnel, although not a formal part of the supervisory organization, should be an integral part of the supervisory program. For new and challenging ideas and approaches, personnel apart from the permanent staff usually have a contribution to make, and their services should be made known to all concerned. Judging from the data, more needs to be done in this regard. Professional growth of teachers. One criterion of a successful supervisory organization refers to the extent of professional growth which teachers feel has resulted from their association in the district. In response to a ques tion concerning the professional growth potential in their district, teachers at all grade levels seemed to agree that opportunities were superior or, at least, satisfactory. Approximately two thirds of all teachers considered the opportunities for the professional growth of teachers to be present to a high degree; the remaining third considered the opportunities to be satisfactory. The general attitude of the respondents may be seen in the statements of three teachers in different districts: A great many opportunities for institute and in- service growth are provided in this district. As always, the teacher must be willing to avail himself of the opportunities. If we stress professionalism, 242 I'm sure more use would be made of the opportunities which are provided. More than ample opportunity and recognition is given to the industrious of this district. In fact, the central office is continually developing plans to fur ther the professional growth of the teachers. If I had used all the help this year in this dis trict, I could have made a high degree of professional growth. Another teacher, thinking of a phase of professional growth and its relation to salary schedule development, suggested: , ? More financial incentives should be incor porated in the pay schedule for professional growth.” The fact that the supervisory organization itself may not be the key to the opportunities for professional growth was intimated by one teacher who said: My professional growth is satisfactory not because of the supervisory effort, but because of the many in- service training courses offered by universities and colleges. The ultimate goal of any supervisory organization, it is generally recognized, is the improvement of instruc tion for children through the development of professional competencies of teachers. Professional growth, whether essentially voluntary in nature or whether encouraged by salary hurdle incentives, should be an integral element of the plan for supervision in all school systems. One of the unique advantages of a unified school system is the supe rior opportunity for professional growth activities of a vertical nature. Participation on vertical committees, as 243 discussed earlier, was the means selected in this investi gation for a study of growth opportunities being provided by unified districts. However, many other means for ac quainting staff members with the roles and problems of colleagues working on different levels of the instructional program should be utilized. In this manner the full scope of opportunities for unification may be more fully real ized. Thus any series of criteria for supervisory organi zation should include recognition of (1) the importance of providing opportunities for professional growth of the total staff; and (2) vertical participation in as many pro fessional activities as possible. Understanding procedures for obtaining instructional aid to teachers. When teachers were asked whether or not the procedure for obtaining help in their teaching field was known to them, there was an almost unanimous response in the affirmative. The elementary and senior high school teachers, in particular, indicated that the procedure for obtaining aid were well known to them. Some concern seemed to be felt among the junior high school teachers, nearly one fifth of whom responded that the procedure for obtain ing help was not clear. This confusion was described by one teacher who said: "I'm not clear on procedure for obtaining help in my teaching. I think I would go to the principal--possibly also to the director of secondary 244 education.” Another junior high school teacher was crit ical of the department head system of organization: "The procedure for obtaining help in my teaching field is not clear to me. The present system of department chairmen doesn't work very well." The problem of delay in obtaining aid, even though the procedure was known, was brought out by an elementary teacher: Although the procedure for obtaining help is well known to me, time is limited. The problem is we need more time to talk to supervisors. When one is at school, you can only talk during lunch and how can a whole faculty speak then? The possibility of direct approach to the building principal was a benefit felt by one teacher: The procedure for obtaining help in my teaching field is well known to me because there is no super visory help except for the principal's occasional constructive criticism. Teachers' understandings regarding procedures for obtaining help were at a high level, as indicated by the responses from all teachers. Making certain that proce dures for obtaining help are well known to all is an important consideration in developing and evaluating plans for supervisory programs. Evaluation of the work of teachers. The most deli cate and complex phase of any organization is evaluation aspect of human relations. In educational administration and supervision, an area of great interest and concern to all personnel is the evaluation of the performance of staff 245 members. The human relationships which are inherent in the process whereby one individual or group of individuals passes judgment upon another individual are complex indeed. One complicating factor is the fact that there is often no clear understanding of the precise role of each individual or the criteria which form the standards for evaluating job effectiveness. That this situation exists in the field of education was evident in the findings of this investigation. All personnel who participated in the intensive study of six selected districts, numbering 686 in all, were asked ques tions to determine their understanding of the evaluation process as conducted in their districts. The administra tive and special personnel groups were asked if a require ment of their positions included the formal or informal rating of teachers. Results reported in Table LI show that 86 per cent of the administrators list the rating of teach ers as one of their responsibilities. However, the fact that nearly one fifth of the special personnel also indi cated that their responsibilities included the rating of teachers might well be looked upon with concern, since all members of this group were considered to be staff or advisory personnel, and not administrative. That three fourths of the special personnel group indicated they had no responsibility for the formal or informal rating of teachers is indicative of the teacher-supervisor 246 TABLE LI RESPONSIBILITY FOR TEACHER EVALUATION Per cent of responses to the statement: "One of the re quirements of my position is . . . Respondent group Adminis- Special trators personnel The formal, written rating of teachers 67 The informal, casual rating of teachers 19 12 No formal or informal rating of teachers 13 75 Both formal and informal rating of teachers No response 0 1 1 6 247 relationships which would normally be expected of staff personnel. The attitude reflected in some of the written com ments by administrative personnel was revealing. One said: The rating of teachers is probably the most impor tant duty allocated to principals, but because of innumerable demands, the principal does not have suffi cient time to do an adequate job. Another principal, referring to the problem of time, stated: "The press of other duties makes it difficult to adequately perform the duty of teacher evaluation." The feeling that teacher evaluations were an unwelcome but inescapable chore was expressed by a principal: "Most of us consider this (the evaluation of teachers) a necessary evil of the job." Such an attitude on the part of an administrator can hardly be expected to evoke the proper relationships and respect from those who are members of his staff, should they become aware of his true feelings. Sounding a more positive note, another administrator indi cated the need for rating: "Clarify as much as possible the need and basis of rating with all staff members." The involvement of the supervisory staff, whether intentional or not, was touched upon by still another respondent who observed: I feel I understand the intent in the supervisory services offered but I feel there is room for improve ment in intentional and unintentional involvement of the consultant in teacher evaluations. That administrators need specific training in 248 techniques of making proper evaluations was pointed out by one respondent who wrote: "We need specific training in method to make rating more worthwhile." The involvement of more than one person in the evaluation process was stressed by an administrator: "I believe ratings by more than one person would add to validity and make for better feelings on the part of the teachers." An admission that evaluation of teaching was very subjective was stressed by a respondent: The rating of teachers is highly subjective. Each administrator has his own set of values. Teachers are assigned through a director of education— principal plays a small part in selectior. Although the evaluation of teachers is usually con fined to those in a probationary classification, the need for evaluating the permanent staff was pointed out by an administrator: "We should develop an evaluation form for the tenure teachers." To permit a more effective and practical schedule for the evaluation of teachers, another administrator suggested: "Consider using a shorter form for teacher evaluations in December and a full evaluation in the Spring." The comments by members of the special personnel group were quite revealing concerning their perceptions of their own proper role in teacher evaluation. One felt that supervisors should have a definite part in evaluation: I do not believe the teacher is adequately super vised by the principal in the regular academic and 249 special areas and I feel that the consultant should have an equal hand in evaluation. It is inherent in the teachers' thinking anyway and we might as well put it to use. That consultants do have some part in the evaluation of teachers is recognized by two consultants who confided: Regarding teacher evaluation, principals often dis cuss with the consultant areas in which a teacher should improve as well as her strengths. It makes the work of the consultant more effective not to rate teachers. Some principals ask for opinions regarding strengths and weaknesses of teachers. However, we cannot "go to bat" for teachers. I also fill out recommendations for teachers when I am requested to do so. Touching upon the indirect, informal, or implied ratings of teachers given by supervisors, a respondent wrote: Although I have no responsibilities for the formal rating of teachers, it is impossible to discuss a teacher's problems, needs, or situation without an implied rating. Even the omission of comment does this. One consultant was worried about the infrequent visits by the principal: Greater fairness and individual teacher benefits could result from visiting classes and having all teachers rate one another within a department by visi tations and other contacts. As it is now, the princi pal and department head do the rating on one, sometimes no visits. An individual in the special personnel group took a stand against the rating of teachers by department chairmen: A department head cannot fulfill his real obligation in assisting his people to improve professionally if he is involved in rating them formally. I approve of informal rating, if any, by department heads. As has been pointed out earlier in this 250 investigation, the determination of whether or not the administrative and special personnel staff considered teacher evaluation a part of their responsibility was an important consideration in the human relationships. The second aspect of the problem of supervisory function and organization phases of the attempt to deter mine existing and recommended practice in the matter of evaluation was to ask the teachers themselves to indicate the person who evaluated their work. The determination of teachers1 attitudes on evaluations was considered highly significant since they were so vitally concerned in the outcome of the process. The 441 teachers who served as respondents in the study were asked to state the person who, in their opinion, evaluated their work. The teachers’ responses are summar ized in Table LII. The elementary teachers apparently had little question as to the identity of the individual who was their evaluator; more than four fifths indicated the building principal. However, 11 per cent believed that the supervisor or consultant evaluated their work, indicating some misunderstanding concerning the relationships between teachers and advisory personnel. The junior high school teachers were also quite cer tain about the person who was responsible for their evalua tions; four fifths stated that the principal was the responsible evaluator; the remainder named other 251 TABLE LII TEACHER OPINIONS CONCERNING THE IDENTITY OF THE PERSONS WHO EVALUATE THEIR WORK Per cent of responses by teachers to the statement: "The evaluation of my work as a teacher is performed by . . . Position Respondent group Elementary Junior Senior school high school high school teachers teachers teachers The principal The supervisor or consultant Department chairman 84 11 0 The superintendent or his assistant 0 Several persons together 3 The superintendent and principal 1 The principal, department chairman and superin tendent 0 Not certain 1 No response 0 82 4 0 0 11 0 3 0 50 6 4 0 22 3 1 12 252 individuals as having a part in the evaluation procedure. The senior high school teachers gave more diversi fied reactions concerning the person or persons responsible for evaluating their teaching effectiveness. Only half of them believed that they were rated by the principal alone; while about a fourth thought that they were evaluated by several persons together. This appeared to be consistent with the response of one fifth of the special personnel group who indicated that they did have something to do with the evaluation of teachers. The high school teachers believed that those involved in evaluations included the principal, the department chairmen and occasionally a curriculum coordinator. The comments made by teachers regarding the proce dure for making evaluations were lengthy and in some cases, very pointed. Because of their relevance to the develop ment of criteria for supervisory organizations in unified school districts, a number of these comments are reproduced herewith. Some of the statements were made by more than one teacher, but repetition was kept to a minimum for the sake of brevity. Among both elementary and secondary teachers a major objection which occurred again and again was that the eval uations of teachers were based on little, if any, classroom observation. Two elementary teachers located in widely separated districts commented on the principal's infrequent 253 contacts, as follows: Teacher evaluations need to be done on a more objec tive basis; people are being rated without being observed. The evaluation of my work is done by the principal. How he can evaluate us is beyond me. The school is too large for one person to evaluate the teachers effectively. That consultants were suspected of taking part in the evaluation of teachers was charged by a number of teachers, one of whom observed: "We are told evaluations are made by the principal. I assume the consultants have some say in evaluations." In another district a respondent commented: The evaluation of teachers have been made by princi pals in the past two years. Formerly, it was done by supervisors. All my evaluations have been very good but in some cases I know, I think they have been very unfair. A number of teachers pointed to other problems faced by the principal in his job as a supervisor of instruction. One said: Principals should set aside some time each day for classroom visitation and teacher-conferences, letting nothing encroach on this time. Principals as a group should see that they stay abreast of the latest tech niques in teaching so they can be real resource persons in their schools. A first year teacher, feeling the need for more direct lead ership and initiative on the principal's part, stated: The principal should schedule conferences with the teacher; should take the initiative instead of always waiting for the teacher to ask for help. I'm not certain if anyone besides the principal rates me. 254 Another elementary teacher pointed to the value of the direct evaluation which a principal was able to give: The evaluation by the principal is sensible and just. Direct evaluation by an immediate superior is generally valuable. I don't feel a relocation is necessary before tenure is granted a teacher--there is too much chance of personality clashes that may re sult. If a good situation between a consultant and teacher exists, don't destroy it. If a system of self-evaluation were set up, a teacher would benefit by the facts brought out in the evaluation. Consideration should be given to the evaluation of all personnel, according to one teacher, who suggested: "Teacher evaluations might be strengthened by having con ferences and evaluations with all personnel Consultants or advisory personnel should not partic ipate in the evaluation of teachers, according to a respondent who reasoned: I feel the supervisor really has no chance to see the teacher in action when her visits are so infre quent. I do not feel evaluation is the job of the supervisor. In a similar vein, another teacher suggested the role that the supervisor should play: I like the fact that our consultants come in to observe, demonstrate or give us help, yet since they do not evaluate us we are freer to do a better job. The use of more than one person in the evaluation procedure was mentioned by a teacher who thought: The evaluation of teachers might be improved by having more than one person evaluate teachers. It should be someone very close to the school situation to get an accurate evaluation. 255 The secondary teachers were generally quite critical of the evaluation process and made a number of statements that could well be given serious consideration as the supervisory organization is studied in any district. Teachers felt that evaluations were often made without sufficient evidence, due to infrequent classroom visita tions o One teacher, commenting on the infrequency of visits and lack of knowledge of a particular field by the person involved in the evaluation process, said: Evaluation is very poor; a five or ten minute obser vation in one semester. The person evaluating should be one with some knowledge of the subject and base his judgment on more frequent observations. In the same district, a similar experience was stated by another high school teacher who looked upon evaluation as improving the teaching act: I feel a true evaluation is not obtained; one based on five minutes of actual visit and no other first-hand knowledge is incomplete. In this form the evaluation is meaningless. A more thorough observation may be impractical but would serve the intended purpose, i.e., aid the teacher to improve his teaching. In another district, a high school teacher declared: "I have never been observed teaching for longer than two or three minutes.” In a third district, a similar observation was made by a high school teacher: The evaluation of my work as a teacher is performed by the principal. However, neither of two principals or their representatives visited my room in three years although I was evaluated each year. Someone should have time for classroom visits. The value of using several people for evaluating 256 teachers was suggested by a number of teachers. In a district where a system of co-worker evaluation was in use, the respondent said: "We have a system of co-worker eval uation that gives us some idea of what our colleagues consider our strengths and weaknesses." Another teacher saw some advantage in the inclusion of teachers in the evaluation process: "Perhaps if the teacher had an oppor tunity to be part of an evaluation committee, he would accept evaluation in a more constructive light," Another felt that the principal needed help in evaluation: Evaluations would be more useful if done more often by either groups of teachers or consultants with con structive criticism as an outgrowth. It is my honest opinion that the principal is bogged down with too many administrative chores to do the necessary job of teacher evaluations by himself. The use of someone in the teacher's own field to evaluate his work would be welcomed by one teacher: I would prefer someone in my own field of homemaking to evaluate my work; the person would know new methods for my particular field and could help me with the areas of need. From the number of written comments and the atti tudes and philosophies expressed in the comments, there appeared to be a very wide difference of opinion and prac tice in the matter of evaluating classroom teachers. Exactly which individual or group of individuals do the evaluating is not clear in the minds of many teachers. Although the majority of elementary and junior high school teachers recognized their principal as the person 257 responsible for evaluations, only half of the high school teachers identified the principal as the one who performs this task. Among respondent special personnel were many who felt they had administrative responsibilities for rat ing teachers, even though their assignments were staff in character. These and other problems of relationships in the matter of teacher evaluation would seem to require clear-cut definition before criteria can be established for planning the total supervisory organization in the school system. Sufficiency of supervisory services. Although no attempt was made to determine the effectiveness of the supervisory services rendered, participating teachers were asked to indicate whether the amount of supervisory ser vices was sufficient to meet their needs. Approximately three fourths of elementary, junior and senior high school teachers believed that the amount of supervisory services was adequate. Inadequate or very inadequate services were reported by about one fifth of the elementary, junior high school, and high school teachers. The comments of four elementary teachers from dif ferent districts were pertinent, showing some concern for inexperienced teachers in their relationships to super visory services: As to the amount of supervisory help: I think it is adequate for experienced teachers who have had 258 ample supervision. Young, new teachers may not think they have enough supervisory help. Supervisory services are adequate for experienced teachers. I feel new teachers would be more secure with more help; many express this to me. I feel there should be more help for the new and beginning teachers during their first few months. In a large school it is impossible for the principal or supervisor to meet this need of the new teacher at the opening of school. The amount of supervisory help is adequate for me. If finances warranted it, I feel beginning teachers and those weak in art, music, or physical education would benefit by more specialized supervision. One elementary teacher believed that total reliance upon the principal for rendering supervisory services was not adequate help: "We need supervisory services other than what the building principal can give of his limited time." On the other hand, the fear that supervisory "help" might result in more work for the burdened teacher was expressed by one respondent who remarked: "Too often, 'supervisory help1 results in added work for a classroom teacher rather than direct help." Still another viewpoint was expressed by a teacher who said: "There is no need for supervisors, other than a full-time principal." The teachers who expressed concern for inadequate services made comments such as the following: We have consultants in the special areas, but I would like instructors trained in these subjects to "take over" classes and teach once a week. Consultants are not available often enough. The music supervisor comes only once a year; the art only once; these two should come at least three or four 259 times annually. The need for more supervisory services in special areas was stated by a number of elementary teachers. In the area of music, for example, one teacher wrote: I feel that perhaps another person in music would help. The one that comes twice a week doesn't get all the way around; the teachers left have to hope for a chance with the other traveling supervisor. This need was also expressed by a high school teacher: As to the amount of supervisory help, there is a definite need for a supervisor in the music field; special training is necessary which most administra tors do not have in this field. For the academic areas, also, the same problem was cited: I've seen the music consultant three times and each time she has taught one song. Does that help me? No '.'. Would a demonstration in science help? I think so'. Anyone can teach music even if he can't sing, but in reading, science, and mathematics, we need help In physical education, another special field as far as many elementary teachers are concerned, the need for more help was expressed: I feel more supervisors in physical education for the elementary field would help. They would be free to give more demonstrations of skills to be taught. Most of the women elementary teachers lack training in this particular field. A number of teachers wrote that the shortage of supervisors was a healthy professional discipline for the teacher. One elementary teacher said: By not having a supervisor, in a certain sense, causes teachers to be self-dependent. This allows the teacher a great deal of freedom in creative and initia tive. This will of course vary according to teacher differences. 260 An attitude of superiority was expressed by another teacher who said: The amount of help is adequate for me. I dislike supervision although I'm always interested in new ideas and methods. I feel my relationship with our two general supervisors to be good. Yet I see them only at our course of study and curriculum meetings. They have observed my classroom at various times in a friendly way. Having taught with both of them, I'm confident I do as well as they would, all in all'. At the secondary level, this positive statement was made: The amount of supervisory help is adequate at the high school level and superfluous at the elementary level. Supervision is the duty of the principal and should be performed by him. Supervisors per se cer tainly are not needed by fully credentialed teachers. Such officials are appointed as advisors but tend to be coercive. Comments concerning the amount of supervisory services were summed up poetically by one teacher who wrote: "More help is always desirable--'the flock is large and the herders fewo'” Although approximately 75 per cent of respondent teachers reported that the supervisory services were ade quate in amount, another 20 to 25 per cent didn't agree with the evaluation. Areas of supervisory needs. Between one fifth and one fourth of all classroom teachers responded that the amount of supervisory services rendered was inadequate; an attempt was made, therefore, to determine the areas of unmet needs. Teachers, as well as administrators and special personnel, were asked to list the areas which they 261 considered to be inadequately staffed or in which no staff was provided. Their responses, as tabulated and summarized, are given in Table LIII. The differences between respondent groups concerning felt needs is immediately apparent. It will be noted that about one third of the elementary teachers believed that there was a need for more supervisory services in art; only about 10 per cent of the administrative and special person nel groups shared the same feeling of need. A greater degree of agreement concerning supervisory needs was evidenced in the areas of music. About one fifth of the administrators and one third of the elementary teachers agreed that there was real need for help in music. The second most urgent need, according to the admin istrators,' was in the field of physical education; science was the fourth most urgently felt need. The elementary teachers placed science aid as their third most needed area. The only area in which high school teachers agreed with other personnel groups was the desirability of addi tional supervisory services for beginning teachers. It should be noted that secondary teachers, by the very nature of the organizational pattern within which specialists are employed, do not have the same needs as elementary teach ers. Three areas which are relatively new, as far as the assignment of supervisory specialists is concerned, are 262 TABLE LIII AREAS OF SUPERVISORY NEEDS* Respondent group Subject area Adminis trators Special personnel Ele mentary teachers Junior high teachers Senior high teachers Art 13 10 31 Language Arts 4 - 4 - - Mathematics 10 - 1 2 - Music 19 11 31 - - Physical Education 17 2 11 - - Reading 2 3 10 - - Science 12 3 17 2 - Help for beginning teachers 2 4 4 - 3 Other 4 3 3 2 * Per cent of responses to the statement: "The areas where more supervisory help to teachers is needed in the district are . . . " 263 science, mathematics and reading. Elementary teachers listed science next in order to art and music in terms of needed services for improving instruction. Administrators mentioned science and mathematics next in order to the "basic three"--music, physical education and art. The expressed desire of school personnel for help in science and mathematics was the result, no doubt, of the nation’s sudden demand for greater emphasis in these sub jects following Russia’s dramatic progress in space explor ation. For years teachers and school administrators have been harassed with the challenge of "Why can't Johnny read?" A feeling of uncertainty concerning satisfactory reading procedures is common among teachers. Consequently, a need for more direction and supervision in reading in struction was a logical finding from the responses of elementary teachers. In addition to the need for more help with "basic three" subjects, providing specialized services in mathe matics, science and reading is a need which cannot be overlooked in planning or evaluating the supervisory ser vices, if the demands of the times and the needs of the staff are to be successfully met. The needs expressed by respondents reflected exist ing inadequacies in existing supervisory organizations surveyed. Only half of the fifty-seven unified school dis tricts in the total study employed music consultants; 264 a third had art consultants, and one fifth employed phys ical education consultants. Among the six districts studied more intensively, three employed consultants in art, music and physical education; one employed special teachers for these three fields, and two did not provide staff specialists in these special areas. The additional services recommended by administra tive, special personnel, and elementary teachers were consistent with the fact that only limited numbers of spe cialists were available to teachers at the time of the investigation. Although aid from services outside the districts (such as county office staff and similar re sources) was often utilized, the conclusion was drawn that there were still unmet needs of elementary teachers in art, music, physical education, mathematics, science and read ing. Strengthening the supervisory organization. This investigation attempted to determine the respondents' sug gestions for strengthening the supervisory organization in their respective districts, other than the addition of extra supervisory personnel. From the administrative group, the comments for strengthening the organization consisted of a number of statements which were centered on the department head system at the secondary school level. One administrator commented: 265 Department chairmen should have true supervisory responsibilities for the quality of instruction--not simply occasional visits to the classrooms, as at present, plus monthly department meetings. Another administrator in the same district asked for a free period for department chairmen when he suggested: The department chairmen need one period a day of non-teaching time to supervise teachers and organize the department's work in addition to the "conference period which every faculty member has at present. In another district, two opposing comments were offered regarding the department head system. One said of finan cial compensation: Our department heads are "volunteers" with no extra time or pay in recognition. I think our program would be strengthened if both were included. The other pointed to the overburdened financial situation in the district: Strengthening the supervisory organization would be difficult because the trend here is to reduce the num ber of supervisory employees and to give them classroom assignments. Teachers also had something to say about department heads. Similar comments came from two different districts: A department chairman, a teacher himself within the subject area with greater responsibilities and power would be a valuable asset in unifying and strengthening the teaching of academic subjects. The junior high should have departments and depart ment heads. They should hold meetings in order to improve specific areas. The inclusion of teacher-assistants or teacher- consultants in the supervisory organization was mentioned as a possibility by a number of respondents. In one 266 district an administrator wrote: I would suggest dropping multiple-school consultant service and trying consultant service within a school under the direction of the principal. Another administrator added: I think other ideas might be tried such as so-called teacher-assistants or eliminate having consultants and give the principal the entire responsibility for the supervision of instruction. A teacher also touched on the use of teacher-consultants: Teaching assistants would be a great help as to selection of extra materials, planning programs, etc. In a district which employs many consultants, two elemen tary teachers offered similar suggestions for strengthening the organization: Have a teacher-coordinator who belongs to the school and works with the principal in the area of curriculum and instruction. This person would be responsible to the principal. I feel it would be excellent to have a teacher in each building that would be responsible for seeing that the various grades cover the same material. An appeal that principals be freed from burdensome routines was expressed by one administrator: One of the easiest and best ways to improve the system would be to free the principals of details that preclude them from supervising instruction. In the same vein, the greater utilization of the building principal's skill was suggested by an administrator: "Depend more on the principal and less on consultants to find ways of aiding the classroom teacher." The problem of specialists versus generalists was 267 presented by two teachers with different viewpoints: Supervisors in specific subject areas are excellent. The need for general academic supervisors, I question. A grade-level "teacher-supervisor" might be of great help in working out specific district-wide grade-level problems. She might work with teachers on specific grade levels to develop workable units of work and operate a center for an exchange of ideas among teach ers such as in social studies, spelling, arithmetic, and reading. More supervisors in general areas are needed so that it will be possible for them to appear more frequently. In another district, a teacher favored the employment of specialists: We have two "generalists." I prefer specialists. I feel generalists spend too much time in "carrying" new or weak teachers. I can teach art, music, and physical education well and find the inspiration from specialists refreshing. The strengthening of the supervisory organization by adding personnel and making changes in job responsibilities is an obligation of administrators as they review their organizations annually. One administrator pointed out: "I believe the supervisory organization might be strength ened if some objective method of evaluation could be devised." Many relevant and unsolved problems were raised by respondents who attempted to analyze ways of strengthening the supervisory organizations in their districts. Some of the more important problems may be determined by the fre quency with which they were mentioned and the emphasis placed on them by respondents. Prominently mentioned were 268 the following problems: (1) Should the department head system be continued? If so, should individuals in the positions be partially released from classroom duties, paid extra, or both? (2) Should teacher-consultants be em ployed? If so, how may they improve the supervisory organ ization? (3) What can be done to release the building principal from the routines of his office in order to supervise classroom instruction? (4) What are the relative merits of generalists and specialists in a supervisory organization? (5) In an existing school system, what posi tions should be added, deleted, or re-classified in order to improve the supervisory organization? (6) What means are available for evaluating the organization for rendering supervisory service? VII. CHAPTER SUMMARY Among the fifty-seven school systems included in the general investigation, six were selected for an intensive study to determine reactions of personnel to various as pects of the supervisory organizations in their districts. Two check lists were used for the collection of data. Form I was distributed to all administrators and special personnel in each of the six districts; Form II was issued on the basis of a random sampling to regular classroom teachers in the follow-up districts. Altogether, 686 returns were received representing an 84 per cent response. 2.69 Of the total number of respondents included in the intensive study, about one fifth were administrators and special personnel (including supervisors), two fifths were elementary teachers, and the remaining respondents were almost equally divided between junior and senior high school teachers. The total group was nearly equally divided as to sex. Almost half the respondents had served in their respective districts for from four to ten years, while about one third had been employed in the districts for more than ten years. Line organizational charts for each of the six dis tricts were analyzed and each reproduced as a part of this investigation. Respondents were requested to react to a number of statements on the check lists. Some of the statements were the same on both forms, some were similar, and others were entirely different in order to obtain reactions from vari ous responsibility levels. Responses made by elementary, junior and senior high school teachers were compared with those made by administrators and special personnel. The reactions were analyzed and in some instances compared with those previously made by the superintendent or the assist ant superintendent on the initial questionnaire in the general study. Concerning a number of questions, respondents were asked to write comments as well as to check the appropriate 270 structured statements. Areas included were: (1) how the supervisory organizations developed in their districts; (2) how well they understood the supervisory organizations; (3) the feasibility of changing the organization for super vision; (4) whether the supervisory organizations were evaluated periodically; (5) the extent to which the organi zation facilitated the attainment of the instructional goals of the district; (6) whether or not written super visory plans were suggested or required; (7) to whom teach ers were responsible for the results of instruction in regular and special subjects; (8) how agreements on teach ing methods were achieved and the degree of freedom for determining teaching methods; (9) the extent to which indi viduals participated in vertical planning committees; (10) the extent to which staff conferences were used to insure uniformity of procedures; (11) whether members of the administrative and special personnel group considered their positions to be line, staff, or both line and staff in nature; (12) the person who coordinated the supervisory program; (13) the frequency of review of job responsibili ties; (14) whether the time available for job responsibili ties was sufficient for the performance of required duties; (15) the degree to which teachers felt they could grow professionally in their districts; (16) whether teachers at various grade levels believed that they understood the procedure for obtaining aid in their work; (17) the person 271 who actually evaluated teachers, and the identity of the person whc teachers themselves thought evaluated their services; (18) the sufficiency of the supervisory services provided; (19) the areas of additional supervisory needs; and (20) ways in which supervisory organizations could be strengthened. Throughout the chapter, verbatim statements were reproduced so that the attitudes of respondents could be revealed, as well as the factual data reported. Tables were presented throughout the discussion to portray quick, visual information regarding the areas covered in the ques tionnaires . The results of this intensive analysis of six selected unified school districts was important to the investigation. It provided a broad sampling of profes sional information and opinions concerning essential ele ments of supervisory organization. The reactions of chief administrators and of their assistants, examined in con junction and comparison with the responses and judgments of teachers and special personnel, were helpful in developing the criteria for supervisory organizations which were an important final phase of the study. CHAPTER VI BASIC CRITERIA FOR SUPERVISORY ORGANIZATIONS I. THE DEVELOPMENT OF A TENTATIVE LIST OF CRITERIA A tentative list of criteria pertaining to the organization for supervision was first developed from a survey of related literature, described in Chapter III of the investigation. The tentative criteria were included on the basis of those mentioned most frequently by educa tional authorities whose writings pertained especially to supervisory organizations. The tentative list of criteria was basic to a for mulation of much of the experimental structure of this investigation, and especially to the development of the instruments used in the two surveys. In fact, the survey results were a reflection of both existing and recommended supervisory organizations. For this reason, instead of seeking opinions of specialists external to the study, it was decided to validate criteria in terms of the viewpoints of those most intimately concerned--the respondents to this study. Therefore, in the light of the questionnaire re sponses from 743 professional staff members in the unified 272 273 school districts of California, each statement included in the initial list of criteria is here examined critically and analyzed to determine whether it can be supported by the findings of the study. (See findings reported in Chap ters IV and V.) A discussion of each criterion included in the tentative list precedes its final disposition as it is accepted, rejected or adapted. Additional criteria evolving from the study were included at the conclusion of the treatment of the initial list. The initial criteria are presented here in italics; the numbers within paren theses refer to the criterion as revised, and correspond to the numbers in the final listing given in the final section of this chapter. II. THE FINAL LIST OF CRITERIA 1. Curriculum specialists are employed who advise and help teachers. This criterion was found to be too general in nature in view of the specific needs expressed by teachers. Therefore, the criterion was adapted to cover specific areas of instruction. Too, because some districts vary the emphasis from year to year, the element of variation was included in the phrasing of the final criterion as follows: "The supervisory organization includes consult ants in such fields as art, music, physical education, science, and other areas, depending on local needs and the 274 nature of the instructional emphasis in the district during any particular period of time" (32). 2. Long-range, vertical curriculum committees are established in the district. The study attempted to discover the extent to which teachers and other personnel were involved in vertical committees to determine whether this criterion was re flected in the supervisory organization. Since about one third of the respondents in the follow-up districts indi cated they had participated in vertical committees* the criterion was considered to be applicable, and was there fore retained. However, the phrasing was changed to include the horizontal as well as the vertical elements as follows: "The supervisory organization provides for the participation of all staff members on vertical as well as horizontal committees" (36). 3. The organization for rendering supervisory services are understood by both tne super visors and the supervised. This criterion was found to be controversial in nature as reflected in the responses of participants in the study. The chief administrators or their assistants stated clearly that the administrative staffs in their districts £ Numbers within parentheses refer to numbers of criteria contained in the final listing given at the end of this chapter. 275 understood the organization for supervision reasonably well; one third reported that principals, and special and supervisory personnel had some misunderstandings about the system. However, nearly three fourths of the respondents thought that teachers had some misunderstandings about the organization for rendering supervisory services. In ques tioning the teachers themselves, it was found that the junior and senior high school teachers and the special personnel admitted that they had some misunderstandings about the supervisory organizations in their districts. From an analysis of the comments and the importance placed on the need for understanding, the criterion was rephrased to read: "The supervisory organization is as well under stood by those supervised as by the consultants and admin istrators responsible for supervision" (30)• 4. There are two classifications of school adminis trative officers, the line and staff. This principle was studied and found to be generally in effect as far as administrative personnel were concerned. The need for a clear understanding of line and staff func tions was stressed in written comments by participants in the study. The criterion was retained, therefore, and phrased as follows: "The supervisory organization includes some personnel with line responsibilities and others with staff functions" (15)• 276 5. Administrative officers perform both line and staff functions” The study showed that special personnel, as reported by some districts, were inclined to consider their posi tions to be of a line rather than of a staff nature. The criterion was retained but rephrased to emphasize the point that only administrative officers performed both functions. The criterion then reads: "Both line and staff functions are performed only by administrative personnel'5 (16). 6. Curriculum workers and supervisors perform staff functions only" As a corollary to the previous criterion, this statement was considered essential because of the need to keep relationships clear at all times. The statement was reworded to indicate staff functions by non-administrative personnel: "Staff functions only are performed by consult ants, curriculum specialists, and similar non-administra- tive personnel” (17). 7. The supervisory services, whether from line or staff personnel, are democratically administered. This statement, although unquestionably important, was considered to be inherent in a large number of other criteria which stressed the basic concepts of democratic operation. Therefore, this criterion was not included as a separate item in the final list of criteria. 277 8. The administrative rating of teachers is done by line officers only. The evaluation of teachers was one of the most con fused issues disclosed by the study as revealed by the check list and written responses of respondents* While this criterion was considered to be very important, it was thought to be not specific enough. Although elementary teachers considered their administrators to be responsible for the evaluation of their work, secondary teachers stated that individuals other than building administrators evalu ated their work. Therefore, the criterion was phrased to include both elementary and secondary teachers in order to avoid any misunderstandings• The resulting criterion read: "The evaluation of teachers is done only by administrative personnel at both the elementary and secondary levels" (40). 9. The relationships and responsibilities of super visory personnel are clearly defined in writing. This basic principle was found to be greatly in need of expansion due to the magnitude of its implications. Unnecessary confusion and misunderstandings were reported in the comments of respondents, to result from unclear relationships and lack of written specifications for posi tions. Therefore, the two following criteria were derived from the study relating to the statement above: a. "Admin istrative and functional charts of organization with 278 accompanying manuals are up-to-date and available in the school district" (25). b. "Written job responsibilities are reviewed annually within the first month of the school year with every non-teaching professional person by the individual responsible for the professional staff" (27). 10. The supervisory organization makes possible the participation of the entire school personnel in' the operation of the school. ” Since the study was based on district-wide super visory organizations rather than on the descriptions of practice at the building level, the principle was not con sidered pertinent and was, therefore, not used in the final listing of criteria. 11. The supervisory organization takes into consid eration all known facts about good human relations^ Although highly subjective in nature, this principle was considered essential to any basic consideration of personnel relationships in any supervisory organization. It was therefore retained in the following form: "The development and maintenance of good human relations is inherent in the supervisory organization" (18). 12. The supervisory organization provides opportuni ties for the teachers* continuous self- improvement. One purpose of this investigation was a determina tion of the extent to which districts were providing 279 in-service opportunities for their teachers. This cri terion was being met in actual practice, as indicated by responses of two thirds of the teachers in the study. However, from comments by respondents regarding the need for continuous growth of personnel other than teachers, the final criterion was phrased to read: "The supervisory organization provides many opportunities for the in-service professional growth of teachers, supervisors, administra tors, and special personnel" (37). 13. The supervisory organization provides for the improvement of the whole teaching-learning environment through cooperative effort. The statement was considered too general for the purpose of this study and therefore two criteria were developed which incorporated the suggestions made by the respondents regarding cooperative effort. The criteria are: a. "The supervisory organization provides for peri odic, scheduled, planned conferences in all subject areas and at all grade levels" (38). b. "Periodic conferences involving the principal, teachers and consultants are held as an aid to assure understanding and agreement with regard to teaching methods" (39). 14. The superintendent is the supervisory and admin istrative leader of the school district. This statement was considered by all respondents to be a fundamental concept. It was verified by their many 280 comments as to the role of the superintendent in giving leadership to the total educational program of the dis trict. The criterion was retained as originally stated ( 1) . 15. The superintendent may delegate supervisory responsibility and authority to his assistants in terms of clearly defined functions. This was another basic criterion which was stressed over and over again by respondents in the study as being indispensable to efficient organization. The criterion was therefore included in the final list as originally stated (2)• 16. The building principal is directly responsible to the superintendent for the results of instruction or to one who is held responsible for the instructional area by the superintendent. This criterion was found to be utilized extensively in practice, since principals were reported to be respon sible either to the superintendent or to the assistant superintendent in charge of instruction. Therefore, the criterion was retained as originally stated (5). 17. The building principal is responsible for the supervision of instruction within his building whether performed by himself or by outside personnel. This criterion was accepted by the great majority of chief administrators or their assistants who stated that the principal was the educational leader in his school. 281 However, there was serious question as to whether this criterion was being met at the senior high school level, since teachers at that level looked to other sources of supervisory leadership rather than to the principal. This reported practice appeared to emphasize the need of retain ing the criterion as a basic one. An addition was made to stress the leadership responsibilities of the principal, as indicated in the questionnaire responses. The criterion was re-written to read: "The building principal is the educational leader in his school and is responsible for the supervision of instruction in his building whether performed by himself or by outside personnel" (6). 18. The classroom teacher is directly responsible to the building principal for resultsof instruc- tion in all areas of the curriculum. From their written comments, it was evident that chief administrators or their assistants assumed that all teachers were directly responsible to their principals for all instructional assistance. However, in practice, teachers, particularly at the high school level, believed that they were responsible to members of the staff other than the principal. Because of its implications for the building and functioning of an effective organization, this criterion was considered one of the most basic of the total group considered, and in the final listing was revised to stress the classroom teachers at "all levels of instruc- 282 tion" in order to indicate clearly that high school as well as elementary and junior high school teachers were in cluded. The criterion was re-written to read: "The class room teacher at all levels of instruction is directly responsible to the building principal for the results of instruction in all curriculum areas" (9). 19. All supervisory personnel, with the exception of the superintendent^ assistant superintendent in charge of instruction, and the building principal, maintain a staff of advisory rela tionship with the superintendent, assistant superintendent in charge of instruction, the principal, and the teacher. — ~ This criterion was not included in the final list because of the apparent inability of respondents to deter mine clearly the intent of the statement. Too, more direct statements of relationships were found in other criteria utilized, such as item 15 above. 20. The membership accepts the purposes and leader ship of the supervisory organization. This criterion represented a phase which was not studied by the investigation. Therefore, no means were developed in the study to determine whether or not the membership of the organization accepted the purposes and the leadership provided. There seemed to be no sound reason for including the criterion on the list. 283 21* The purposes and goals of the supervisory organization are properly balanced in terns of the total scope of tne educational program. The study did not attempt to determine the extent to which the supervisory organization provided a balance with in the educational program. Rather, a more specific criterion than the one above was developed from the re sults of the study and was related to the achievement of educational objectives. The criterion resulting from the study stressed the need for the improvement of instruction at the elementary and secondary levels and stated as fol lows : The supervisory organization provides equal empha sis on the improvement of instruction and learning at both the elementary and secondary levels" (21). 22. The supervisory organization makes possible the attainment of established goals. The investigation sought to determine the extent to which the supervisory organization made possible the attainment of the instructional goals of the district. A number of responses indicated that improvement was needed more adequately to attain the districts' educational goals. Therefore, the criterion was retained but reworded in terms of the necessity for evaluating the supervisory organiza tion and stressing concern for instructional results at all grade levels. In the final listing, the criterion was stated as follows: "The supervisory organization is peri odically reviewed in the light of instructional results 284 achieved at all grade levels in relation to established district objectives” (24). 23. The supervisory organization makes maximum use of the ability and creativity of its members. This criterion was retained with minor rewording since considerable importance was placed by teacher- respondents on freedom of choice regarding instructional methodology. An additional criterion specifically relat ing to teaching methods was also established and based on the study's findings. One danger pointed out by some teachers pertained to complete freedom in a multitude of different areas of emphasis within a curriculum area. Because of the many constructive and practical responses from teachers regarding the supervisory organizations in their districts, the word "encourages" was inserted in one of the criteria in referring to the need for promoting the innate creativity of the staff. The two criteria were listed to read: a. "Teachers have reasonable freedom in the selection of teaching methods within the framework of established curriculum" (12). b. "The supervisory organi zation encourages and utilizes the maximum creativity of its members" (19). 24. Accountability of responsibility for the results of instruction is easily identified through the organizational pattern of supervision. The importance of determining responsibility for 285 instructional results was stressed by participants in the study in many statements reflecting concern for unclear responsibilities and the confusion which invariably re sulted. Therefore, there was every justification for retaining the criterion as initially stated (22)• 25. Each member of the supervisory organization is fully aware of his responsibilities and whaF is expected of: him. This was found to be an important concept but was actually expanded in the final listing to form two criteria emphasizing the need for written job responsibilities and specifications. This criterion is contained as item number 27 on the final listing; the other criterion was stated as follows: "Written job specifications are available for all administrative and supervisory positions in the district and these specifications show clear-cut responsibilities and relationships so that each individual knows to whom he is responsible” (28). 26. The supervisory organization provides for an integral tie between supervision and admin istration . No way was found to evaluate this particular cri terion based on the scope and findings of the investiga tion. The general nature of the criterion did not make it adaptable for inclusion in a more practical form which would reflect any of the study's findings. Therefore, this criterion was deleted from the final listing. 286 27. The supervisory organization provides for an adequate time allowance for tne supervisor to work with the instructional program. The investigation encompassed a study of the ade quacy of time for the performing of supervisory and administrative duties. As might be expected, considerable space was devoted by the respondents in explaining the need for more time or more help to accomplish the needs of their jobs. This criterion was considered important for inclusion in the final list because of the ever-present need for continual review of the responsibilities of per sonnel before adding duties in a growing school system. Therefore, the criterion was reworded to include the con cept of adequate numbers of individuals as well as adequate time for each person to perform assigned duties. The cri terion, as revised, read: "The amount of time provided for supervisory services is sufficient due to the employ ment of an adequate number of persons for the prescribed scope of responsibilities" (34). 28. The supervisory organization facilitates the articulation between various levels of the instructional program. An analysis of the results of the intensive follow-up study indicated that one third of the respondent administrators and special personnel believed that articu lation between levels of instruction in their districts needed improvement. This criterion was therefore 287 considered highly important because of its impact on the total instructional program0 However, in order to be more specific in its application to unified school systems, the criterion was written as follows; "The supervisory organ ization provides for effective articulation between ele mentary and junior high school and between junior high school and senior high school levels" (31). 29. The supervisory organization provides the build ing principal with supplemental supervisory resources upon request or routine basis. This criterion was found to reflect the existing practice of school districts studied, and to provide a means of expanding the resources found within each dis trict. The practice of employing outside personnel to aid in strengthening the services to teachers was generally well received by respondents. However, because half of the high school teachers and about one third of the junior high school teachers stated that they had no knowledge of the use of out-of-district sources at their levels, the cri terion was reworded so as to include all grade levels. As re-written, the criterion was as follows: "The supervisory organization provides for the periodic employment of out- of-district resource personnel for all grade levels" (33). 30o The supervisory organization makes possible the appropriate use of the county and state personnel. " The need for utilization of professional personnel 288 in the smaller districts under 4,000 pupils was evidenced by written comments made by the respondents. Although not mentioned as frequently as other elements of supervisory services, the criterion was nevertheless considered to be of sufficient importance to be included in the final list. Therefore, the criterion was retained but modified slightly as follows: "The supervisory organization provides for the appropriate utilization of state and county professional personnel" (20). 31. The supervisory organization centers its empha sis on the improvement of instruction^ This criterion was incorporated in item 21 on the final list; this item stressed the improvement of instruc tion at both the elementary and secondary levels. There fore, the criterion was retained but modified to express the concept of equal emphasis on all levels of instruction: "The supervisory organization provides equal emphasis on the improvement of instruction and learning at both the elementary and secondary levels" (21). 32o The supervisory organization provides for cooperative group thinking and action to~ solve instructional problems. This criterion was essentially the same as criterion number 13 on the initial list; this read: "The supervisory organization provides for the improvement of the whole teaching-learning environment through cooperative effort." 289 Because of the importance placed by the respondents on conferences and meetings designed to resolve problems and create better understandings regarding instruction, the criterion was diluted into two statements; these appear as items 38 and 39 on the final list. 33. The supervisory organization encourages teachers to do creative teaching in a relaxed educational climate. ' As was true regarding freedom for selecting teaching methods, respondents indicated the desirability of main taining a permissive atmosphere which would result in creative teaching unhampered by arbitrary restrictions. Therefore, the criterion was retained in the following form: "The supervisory organization develops an educational environment which stimulates teachers to teach creatively" ( 11) . 34. The supervisory organization is periodically reviewed in the light of results achieved in relation to established objectives. Many suggestions were made by respondents regarding the necessity for evaluating supervisory programs, and the methods to be employed in making evaluations. The cri terion above was expanded, therefore, to stress district- developed criteria and the utilization of teachers repre senting all three instructional levels of a unified system. The criterion was re-written as follows: "The supervisory organization was evaluated periodically by established 290 district criteria and by the cooperative effort of the total staff including teachers representing elementary, junior and senior high school levels” (43). 35. The supervisory organization employs scientific principles based on research and experienced The investigation sought to determine the manner in which supervisory organizations had been developed. The evidence obtained indicated that the organizations were formulated primarily through the application of the phi losophy of the district, consideration of the needs of pupils and teachers, consultations with personnel already in the district, and an assessment of the financial limita tions of the district. In approximately one of every ten districts the supervisory organizations had been developed through professional surveys. The need for this criterion was obvious; the criterion was re-written in order to indicate more specifically the viewpoints of respondents. The criterion was then stated as follows: "The development of the supervisory organization is based on the findings of research, established criteria, and recommendations of professional specialists in the field" (13). 36. Classroom visitations as a supervisory service are rendered by line officers at any time. This criterion was assumed to have been included in the statement indicating that administrative personnel performed both line and staff functions; it appears as 291 item 16 in the final list. For the purpose of this study, the detail of classroom visitation was outside the scope of the investigation; therefore, specific reference to visitation was not incorporated in the final wording of the criterion. 37. Classroom visitations as a supervisory service aFe rendered preferably by staff personnel upon call or request of the teacher in charge. As noted in the preceding paragraph regarding item 36, the classroom visit as such was not a part of the investigation. However, an area related to the supervisory visit was studied when teachers were requested to respond to the question referring to their understanding regarding the procedure to be followed in obtaining aid in their teaching assignments. The importance to teachers of a knowledge of the means for getting instructional help was considered in the formulation of the statement: "The pro cedure for teachers to obtain aid in their field is well understood by teachers at all grade levels in both elemen tary and secondary schools" (10). 38. The divisions of supervision and curriculum are coordinated with common objectives. This criterion referring to the need for determining the person responsible for the coordination of supervision in the district was utilized in the study in revised form. The following criterion was developed to incorporate the 292 element of coordination as expressed in the initial cri terion: "To assure continuity and articulation of instruction, coordination of supervision throughout all grade levels of the school district is the responsibility of one person— either the superintendent or a person desig nated by the superintendent" (4)» 39. A common theory of education, a common tech nology, a common aim and philosophy must be established. For the purpose of this investigation, the criterion was considered too vague to be included in the final list, since throughout the development of criteria emphasis was placed on practical application of principles. This cri terion, lacking any substantiation in the study, was therefore deleted from the final list of criteria. 40. The work of the line officers and that of the staff officers must be coordinated through common planning under a deputy superintendent or some form of supervisory council. This criterion was considered to have been incor porated in the statement made under initial criterion number 38, above, and included in the final criterion number 4. To avoid duplication, the initial criterion was not used. 293 41. Below the level of general coordination there must be many interlocking committees, confer ence groups, and small sub"committees. The essential elements of coordination, as of group conferences, and committee involvement were included in the final criteria numbers 38 and 39. Therefore, this criterion was not included in the final list. 42. Cases of conflict or disagreement between any officers or group must be settled by the next higher administrative officer and ultimately by the superintendent. The investigation included a review of the means utilized in resolving disagreements or conflicts. In actual practice, the essential elements stated in the cri terion were found to be utilized. The criterion was retained in the final list because of sufficient substan tiation of its importance (23). 43. Adjustment of strictly logical lines and duties must be made when local circumstances demand it (type of community, size of system, tradition, previous policies, and the training, experience, and personalities of the personnel already there). Flexibility of organization and adjustment to local circumstances were re-occurring principles which were con sidered important by the participants in the study. The criterion statement was simplified and a second statement developed dealing exclusively with the element of flexi bility. The two resulting criteria were written as follows: a. "Adjustments in the logical lines and duties 294 of personnel in the supervisory organization are made when required by local circumstances" (42). b. "The supervisory organization contains elements of flexibility to the extent that changes can be readily made when necessary" (44). 44. Line officers will have to perform duties in some instances which are ordinarily assigned to staff officers. The concept of line officers performing staff func tions was utilized in a previous statement included in the discussion of initial criterion number 5. Therefore, the criterion was deleted to avoid duplication. 45. Staff officers will have to perfom duties in some instances which are ordinarily assigned to line officers^ This criterion, although stating a practice which existed in a number of school districts reviewed in this investigation, apparently was an item which elicited con siderable confusion and misunderstanding on the part of respondents. Because this principle was contrary to the criterion developed under number 6 in the initial list (see item number 17 in the final list), this criterion was deleted. 295 III. ADDITIONAL CRITERIA DERIVED FROM THE SURVEY RESULTS In addition to the criteria which were utilized from the professional literature and found to be applicable with or without modifications, a number of others emerged from the experimental study. These criteria resulted primarily from statements made by the professional personnel who served as respondents in the study, and from observations made in analyzing the data. Each criterion added here is annotated briefly with an explanation for its inclusion in the final list. As was the case with items presented in the previous section, numbers within parentheses appearing to the left of the criterion refer to its number in the final list, as given at the end of the chapter. (3) The superintendent personally clarifies the expectancies and responsibilities of the total administrative and supervisory staff in order that roles and relationships are clearly understood. Throughout the investigation the data clearly indi cated that the leadership of the superintendent in the supervisory organization was not only essential but manda tory. The need for the superintendent's personal involve ment was considered important since he is the individual ultimately responsible for the success or failure of any activity in the school system. To provide the aggressive, 296 positive, and inspiring leadership on a personal basis was considered by the respondents to be an essential element in any criterion. (7) Building principals are relieved of routine tasks by the employment of sufficient clerical and professional staff. This criterion, perhaps hidden in those found in the literature, was considered important enough to list by itself because of the frequency that principals mentioned the lack of time for their supervisory duties. Teachers also saw a need for principals to be relieved of their office-confining burdens in order to spend more time in the supervision of instruction. Clerical aids as well as certificated personnel were included in the criterion since in reviewing its policies a district would want to weigh which of the two, if not both, it could afford or be in harmony with its philosophy of education. The relief of the school's chief administrator from routines could well be the most economical utilization of his time accord ing to the study's respondents. (14) The supervisory organization is adequately financed through proper budget appropriation. The element of adequate financing of a supervisory program has no doubt been assumed by the writers in school administration. However, since inadequate financing was found to be one of the most concerning problems for school 297 administrators, a specific criterion stressing adequate financing was considered essential. The planning of the budget is of course only the beginning of the solution to the problem of a supervisory organization--but at least it is a beginning which must be considered at the time of budget preparation rather than waiting until the year is under way. Because of the demands on the total school budget for all operations, a criterion specifically calling attention to the need for adequate financing of the organ ization for rendering supervisory services to teachers was included in the finalized list of criteria. (26) Every position in the supervisory organization is filled with the most competent person avail- Ible and one who is familiar with at least the" acTjacent levels of instruction to the one for which he is directly responsible. From the study's findings, there were indications that districts were obliged to utilize the available per sonnel already in the district in the development of their supervisory organizations. Too, the need in unified dis tricts for supervisory and administrative personnel to be somewhat familiar with adjacent areas of instruction was also reflected in a criterion to be presented later re garding the utilization of the supervisory personnel in vertical planning. The employment of competent personnel may be as sumed, of course. However, for the purposes of this 298 investigation, the responses indicated that competency should not be merely assumed but questioned at the appro priate time. Therefore, the final listing included this criterion regarding competency as a basic consideration of importance. (29) Written supervisory plans for long- and short- range projects are used as administrative controls to aid administrators and consultants in the planning of their activities. The investigation determined whether or not general practice reflected the utilization of some form of formal planning on the part of the non-teaching personnel. The findings resulting from the study showed that in about only one out of ten cases some written plan of activities was required. However, from reactions and suggestions of the respondents recognizing the need for careful planning of appropriate activities, the conclusion was reached that some form of prepared plan would be desirable in strength ening the educational program. The justification for such a basic element as a written supervisory plan was considered similar to the use of written lesson plans prepared by teachers. Although written plans for teaching lessons may not be as complete in details as may be desirable, there is still evidence that some planning preceded instruction. Likewise, super visory, administrative and special personnel should con sider the value of a similar brief but well-considered 299 written plan of action for the areas of their responsi bilities according to the reactions of respondents in the study. The criterion was therefore considered justified for inclusion in the final list. (35) The supervisory organization provides special ists wno are actively involved in planning and Helping to coordinate the educational program vertically as well as horizontally in the fields of their specialties. This criterion emerged from the study's findings which showed that in the majority of situations specialists were responsible for aiding in the supervision of the in structional program throughout the elementary and secondary levels. However, even though participation in vertical activities was found to be generally satisfactory in terms of the numbers of personnel involved, specialists were not mentioned as being directly active in planning the instruc tional program in their special fields vertically. The need for the proper articulation and a desirable sequence of experiences was apparent from reviewing the study’s findings. The conclusion was reached that an art special ist, for example, should be directly involved in planning the total art program in a unified school district even though his main responsibility was designated as an elemen tary art specialist. In this manner the real strength of unification was assumed to be more readily attainable if vertical as well as horizontal utilization of specialists 300 were integral aspects of the supervisory organization. (41) The procedure for the evaluation of each member of the actmfnistrative and supervisory staff by his immediate superior is established and func tioning in the school system. The evaluation of teachers was a phase of the super visory organization which was reviewed in detail by the investigation. However, as relationships and understand ings of various roles were reviewed in the study, one important element seemed missing— the formal or informal evaluation of the non-teaching professional staff. A need was indicated for such evaluations if only to further clarify the areas of responsibilities of different members of the staff. However, the major reason for the inclusion of the criterion in the list was due to the desirability of including all non-teaching professional personnel in an evaluation program somewhat similar to that followed for teachers. By utilizing the criterion, the conclusion was reached that professional growth, competency on the job, and other highly desirable elements of increasing personnel skills should be expected. Therefore, in a supervisory organization, the evaluation of the staff periodically by some systematic means was considered important enough to formulate into the criterion listed above. IV. CHAPTER SUMMARY 301 Criteria were developed in an effort to establish standards readily applicable to most school systems, re gardless of whether or not a unified school district organ ization exists. However, it was recognized that unifica tion presents unique opportunities for making a supervisory organization effective throughout all levels of the program. The criteria consisted of a list of statements developed from two major sources: (1) the professional literature in the field of supervision and administration and research studies; and (2) the results of responses by 743 members of professional staffs in fifty-seven unified school districts in California. The responses were ob tained by means of three different questionnaires and by personal interview. The criteria contained in the tenta tive list were analyzed on the basis of the study's find ings; they were then either retained, modified or deleted, depending on whether or not there were substantiating reasons for the action as a result of the study's findings. The final criteria were stated in concise and direct terms with the practical aspects of their application kept constantly in mind. 1. The superintendent is the administrative and supervisory leader of the school district. 302 2. The superintendent delegates supervisory respon sibility and authority to his assistants in terms of clearly defined functions. 3. The superintendent personally clarifies the expectancies and responsibilities of the total administra tive and supervisory staffs in order that roles and rela tionships may be clearly understood. 4. To secure continuity and articulation of in struction, coordination of supervision throughout all grade levels of the school district is the responsibility of one person--either the superintendent or a person designated by the superintendent. 5. The building principal is responsible directly to the superintendent for the results of instruction, or to one held responsible for the instructional area by the superintendent. 6. The building principal is the educational leader in his school and is responsible for the supervision of instruction in his building, whether performed by himself or by outside personnel. 7. Building principals are relieved of routine tasks by the employment of sufficient clerical and profes sional staff. 8. The supervisory organization provides the build ing principal with supplemental supervisory resources upon request or by designated schedule. 303 9. The classroom teacher at all levels of instruc tion is responsible directly to the building principal for the results of instruction in all curriculum areas. 10. The procedure for teachers to obtain aid in their field is well understood by teachers at all grade levels, in both elementary and secondary schools. 11. The supervisory organization develops an edu cational environment which stimulates teachers to teach creatively. 12. Teachers have reasonable freedom in the selec tion of teaching methods within the framework of estab lished curricula. 13. The development of the supervisory organization is based on the findings of research, established criteria and recommendations of professional specialists in the field. 14. The supervisory organization is adequately financed through proper budget appropriation. 15. The supervisory organization includes some personnel with line responsibilities and others with staff functions. 16. Both line and staff functions are performed only by administrative personnel. 17. Staff functions only are performed by consult ants, curriculum specialists and similar non-administrative personnel. 304 18. The development and maintenance of good human relations is inherent in the supervisory organization. 19. The supervisory organization encourages and utilizes the maximum creativity of its members. 20. The supervisory organization provides for the appropriate utilization of state and county professional personnel. 21o The supervisory organization provides equal emphasis on the improvement of instruction and learning at both elementary and secondary levels. 22. The accountability of responsibility for the results of instruction is easily identified through the organizational pattern of supervisory services. 23. Cases of conflict or disagreement between any officers or groups are settled by the next higher adminis trative officer and ultimately by the superintendent. 24. The supervisory organization is periodically reviewed in the light of instructional results achieved at all grade levels in relation to established district ob- j ectives. 25. Administrative and functional charts of organ ization with accompanying manuals are up-to-date and available in the school district. 26. Every position in the supervisory organization is filled with the most competent person available, one who is familiar at least with those levels of instruction 305 adjacent to the one for which he is directly responsible. 27. Written job responsibilities are reviewed annually within the first month of the school year with every non-teaching professional person by the individual responsible for the professional staff. 28. Written job specifications are available for all administrative and supervisory positions in the dis trict and these specifications show clear-cut responsibili ties and relationships so that each individual knows to whom he is responsible. 29. Written supervisory plans for long- and short- range projects are used as administrative controls to aid administrators and consultants in the planning of their activities. 30. The supervisory organization is as well under stood by those supervised as by the consultants and admin istrators responsible for supervision. 31. The supervisory organization provides for effective articulation between elementary and junior high school and between junior and senior high school levels. 32. The supervisory organization includes consult ants in such fields as art, music, physical education, science, and other areas depending on local needs and the nature of the instructional emphasis in the district during any particular period of time. 33. The supervisory organization provides for the 306 periodic employment of out-of-district resource personnel for all grade levels. 34. The amount of time provided for supervisory services is sufficient due to the employment of an adequate number of persons for the prescribed scope of responsi bilities. 35. The supervisory organization provides for specialists who are actively involved in planning and helping to coordinate the educational program vertically as well as horizontally in the fields of their specialties. 36. The supervisory organization provides for the participation of all staff members on vertical as well as horizontal committees. 37. The supervisory organization provides many opportunities for the in-service professional growth of teachers, supervisors, administrators, and special per sonnel. 38. The supervisory organization provides for periodic, scheduled, planned conferences in all subject areas and at all grade levels. 39. Periodic conferences involving the principal, teachers and consultants are held as an aid to assure understanding and agreement with regard to teaching methods. 40. The evaluation of teachers is done only by administrative personnel at both the elementary and 307 secondary levels. 41. A procedure for the evaluation of each member of the administrative and supervisory staff by his immedi ate superior is established and functioning in the school system. 42. Adjustments in the logical lines and duties of personnel in the supervisory organization are made when required by local circumstances. 43. The supervisory organization is evaluated periodically by established district criteria and by the cooperative effort of the total staff including teachers representing elementary, junior and senior high school levels. 44. The supervisory organization contains elements of flexibility to the extent that changes can be readily made when necessary. CHAPTER VII SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS I. GENERAL SUMMARY The problem. The purpose of this investigation was to study the organization of supervisory services in selected unified school districts in California. The study attempted to answer the following questions relating to supervisory organizations: 1. During the 1957-58 school year, what was the extent of administrative, supervisory, special teachers and special services personnel main tained in selected unified school districts in California? 2o What was the length of employment in calendar months for the positions maintained? 3. To whom were members of the administrative- supervisory organization responsible? 4. What factors were responsible for the establish ment of the supervisory services in the selected districts? 5. To what extent was the organization for super vision understood by the superintendent and his 308 309 assistants, teachers, supervisors and princi pals? 6. How were the relationships among members of the supervisory personnel established and main tained? 7. To what degree did the supervisory organization make possible the attainment of the instruc tional goals of the district? 8. To whom were teachers responsible for the re sults of instruction in regular and special subjects according to administrative, special and teaching personnel? 9. What position in the districts was responsible for the coordination of the supervisory program? 10. What were the major strengths and most promising features of the supervisory organizations studied? 11. What were the desirable modifications of the supervisory organizations according to adminis trative, supervisory, special personnel and teachers? 12. What was the nature of the superintendent's role in strengthening the supervisory organization? 13. What criteria for supervisory organizations in unified school districts may be derived from a synthesis of current practice and the professional literature? 310 Procedure. The procedures employed in the investi gation were as follows: (1) a survey of the literature and compilation of a preliminary list of criteria for super visory organization; (2) the circulation of a printed questionnaire to sixty-one unified school districts in California which had pupil enrollments of 900 and over (excluding San Diego, Long Beach, San Francisco and Oak land) ; (3) a more intensive study of six unified school districts by personal interview of the chief administrators or their assistants and the use of two different question naires completed by 686 educators; (4) the development of criteria and recommendations for supervisory organizations with special emphasis on unified school districts in California. II. SUMMARY OF FINDINGS Personnel maintained. All districts in the study employed full-time elementary and high school principals, while nearly three fourths employed full-time elementary or junior high school principals. Assistant high school prin cipals were assigned in four fifths of the districts; assistant elementary and junior high school principals were found in approximately half of the school systems surveyed. On the central office staff, assistant 311 superintendents in charge of instruction were reported by slightly less than half of the districts; assistant super intendents in charge of personnel or personnel directors were found in one fourth of the districts. Directors of instruction, or directors of elementary and secondary edu cation, were established in one tenth of the districts. In the area of supervisory personnel, music consult ants were employed in half of the districts; curriculum coordinators and art consultants in one third; and physical education, recreation and general consultants in one fourth of the districts. The great majority of supervisory positions were assigned responsibilities involving grades kindergarten through twelve. General consultants were assigned usually to kindergarten through grade six. Except for art and music consultants, most super visory personnel were found to be part of the supervisory organization in districts with more than 4,000 pupils. In the field of special teachers, nine of ten dis tricts employed instrumental music instructors; two fifths had teachers of vocal music, remedial reading, and teachers for the mentally handicapped. Slightly more than half had speech therapists on the staff. The following special services personnel were em ployed: school nurses in four fifths of the districts; psychologists in half; supervisors of child welfare and 312 attendance in two fifths; psychometrists attached to the district guidance division in one third; and directors of special services, directors of guidance, and district librarians in a very small percentage of districts. The scope of responsibility for personnel assigned to special services extended throughout all grade levels. Unlike supervisory positions, positions in special services and special classroom teaching assignments were found in as great numbers in small districts as in large districts. Length of employment for positions maintained. In two thirds of the districts, elementary principals were employed for ten calendar months. Almost half of the dis tricts employed junior high school principals for ten calendar months, while less than one fifth hired senior high school principals on that basis. One third of the districts placed elementary principals on an eleven or twelve-month basis; half employed junior high school prin cipals for eleven or twelve months; and three fourths employed senior high school principals for eleven or twelve months. Regarding the length of employment for central office personnel, only four of the fifty-seven districts studied reported that administrators in the central office were employed for less than eleven calendar months. Thus, 313 the large majority of central office administrators were found to be twelve-calendar-month employees. The supervisory personnel held ten calendar months contracts in the majority of districts, although about one fourth reported twelve-calendar-month assignments for ele mentary coordinators and curriculum coordinators. Special personnel were usually assigned for ten calendar months, although two positions varied from this practice. District librarians were placed on a twelve- calendar-month basis in one third of the districts, and directors of health services were given twelve-calendar- month assignments in one fifth of the districts. Designation of immediate superior. In the central office group, the great majority of personnel were respon sible to the superintendent. Positions which were often responsible to someone other than the superintendent were the director of research and director of special services. The majority of districts having these two positions (director of research and director of special services) made them responsible directly to the assistant superin tendent in charge of instruction. Building principals were generally responsible to the superintendent or to the assistant superintendent in charge of instruction. Special personnel (director of health services, 314 district librarian, coordinators of instructional materi als, directors of pupil personnel and similar positions) were assigned to the assistant superintendent in charge of instruction where this position existed. Where it did not, the superintendent was the supervising officer. Supervisory personnel in such positions as consult ants in art, music, elementary and primary education were usually assigned to the assistant superintendent in charge of instruction. In about one fifth of the districts these supervisory positions were made directly responsible to the superintendent. One third of the districts placed teacher- consultants under the supervision of the director of elementary education when that position was included in the supervisory organization. Factors affecting the establishment of supervisory organizations. Four factors mentioned most often as influ encing the organization of supervisory services were: (1) the philosophy of the district; (2) the needs of pupils and teachers; (3) the available personnel already in the district; and (4) the financial limitations of the dis trict. Only 9 per cent of districts made use of profes sional surveys in the development of the supervisory organization. Understanding the supervisory organization. Super visory organizations were relatively well understood by 315 administrators and by elementary teachers. In fact, ele mentary teachers seemed to understand the supervisory organization better than their administrators thought they did. In a similar sampling of junior and senior high school teachers, however, the situation was reversed. By their own admission, only half of the secondary teachers felt they had a reasonable understanding of the super visory organization in their districts. The other half of the secondary teachers either had some misunderstanding, definitely did not understand the functions of the super visory organization, or were not sure. Moreover, three fourths of the respondent administrators believed that their teachers did not understand the supervisory organiza tions in their districts. One third of these administra tors believed that their principals and special personnel had some misunderstanding of the organization which involved them directly. Development and maintenance of relationships. The working relationships between certain professional groups was determined by an analysis of the manner in which staff members resolved various problems. Direction regarding teaching methods at the elementary school level was given primarily by the principal, and to some extent by the principal and supervisor working together. At the junior high school level the principal was influential in 316 determining teaching methods; other sources were the principal and supervisor working together, and other teachers. Only 10 per cent of the high school teachers stated that the principal gave directions on teaching methods. Department chairmen and other sources were re sponsible for direction given to high school teachers. Teachers generally agreed that they had a high degree of freedom in selecting their own teaching methods. Any differences that arose as to teaching methods were settled by personnel and group conferences. Among the supervisory personnel, differences were resolved through staff meetings and through reference to written policies. Job responsibilities were reviewed annually or biennially for the purpose of clarifying assignments. How ever, administrative positions in one third of the dis tricts had no written specifications; this was true in half of the districts with respect to special personnel posi tions. Thus relationships and responsibilities were found to be established by means of understandings and oral agreements rather than by means of written job specifica tions. Determination of the positions in the supervisory organization which were involved in the evaluation of teaching effectiveness was another means used to discover relationships among various groups of professional 317 personnel. While most elementary and junior high school teachers believed that they were rated by their principals, only half of the high school teachers thought this to be true. One fifth of the special personnel group stated that they were involved either formally or informally in the evaluation of teachers, even though their positions were staff in nature. Attainment of instructional goals. In about three fourths of the school systems, the supervisory organization made possible the attainment of the instructional goals of the district; the remaining districts indicated that im provement of the organization was desirable before a satisfactory attainment of the districts' instructional goals could be achieved. Responsibility for the results of instruction. With one exception, administrators reported that teachers were responsible to their principals for the results of instruc tion, in both regular and special subjects. The one excep tion involved a district in which elementary teachers were responsible to the director of elementary education and secondary teachers were responsible to the director of secondary education. About three fourths of elementary and junior high school teachers thought that they were responsible to the principal for instructional results in regular subjects. However, in special subject fields 318 (art, music, physical education), only half of elementary and junior high school teachers and one third of high school teachers thought that they were directly responsible to the principal for the results of instruction. Thus, high school teachers considered themselves responsible to individuals other than the principal for both special and regular subjects. These other positions were, variously, curriculum directors, department chairmen, and directors of secondary education. Responsibility for coordinating supervision. Districts placed the responsibility for the coordination of supervisory programs upon the assistant superintendent in charge of instruction where such a position existed. Otherwise, superintendents were named as coordinators of supervision in districts too small to employ assistant superintendents in the instructional area. Major strengths of supervisory organizations. The most outstanding strengths of supervisory organizations, as reported by chief administrators or their assistants, were: (1) the clear-cut definition of responsibilities; (2) recognition of the principal as the educational leader in his school; (3) clear-cut relationships among super visory personnel; (4) a good educational climate created by the organization; and (5) general competency of the staff. Flexibility and simplicity of organization were 319 also important strengths. Although a number of districts failed to evaluate their supervisory organizations peri odically, there was definite agreement among the respond ents that frequent evaluations were highly desirable. Strengthening the supervisory organization. One means of strengthening the supervisory organization in volved the addition of positions to the total staff. Administrators mentioned the desirability of adding such personnel as curriculum consultants, assistant superin tendents in charge of instruction, and consultants in physical education, music and art. Elementary teachers suggested the addition of consultants in art, music and science as the most needed supervisory aids. Junior and senior high school teachers suggested only indirectly the need for adding supervisory personnel as they stressed the inadequate time available to the principal for such duties. High school teachers were concerned about the needs for additional supervisory aids for beginning teachers. Other means of strengthening the supervisory organ ization included: (1) the reduction of the teacher- supervisor ratio (adding personnel in positions already established); (2) increasing the competency of principal; and (3) reviewing relationships and responsibilities as a basic step in modifying the organizational pattern. While the majority of administrators agreed that changes could 320 be readily made in the organization if such changes were desired, some felt that this could be done only with difficulty. The superintendent's role in strengthening super visory organizations. As the educational leader in his district, the superintendent's role in supervision was believed to include the performance of such tasks as (1) reviewing and clarifying the duties and responsibilities of his administrative and supervisory staffs; (2) recog nizing the need and providing the funds for a competent supervisory staff; and (3) encouraging the supervisory staff so they are made to feel that they are an integral part of the organization. Criteria for supervisory organizations. A tentative list of criteria pertaining to the organization for super vision was developed after an extensive search of the professional literature and related research studies. Each criterion listed was either retained, adapted or eliminated on the basis of the data obtained from 743 professional staff members in fifty-seven unified school districts in California. The following criteria should be considered in the development of a supervisory organization in unified school districts: 1. The superintendent is the administrative and 321 supervisory leader of the school district. 2. The superintendent delegates supervisory respon sibility and authority to his assistants in terms of clearly defined function. 3. The superintendent personally clarifies the expectancies and responsibilities of the total administra tive and supervisory staffs in order that roles and rela tionships are clearly understood. 4. To assure continuity and articulation of in struction, coordination of supervision throughout all grade levels of the school district is the responsibility of one person— either the superintendent or a person designated by the superintendent. 5. The building principal is directly responsible to the superintendent for the results of instruction or to one held responsible for the instructional area by the superintendent. 6. The building principal is the educational leader in his school and is responsible for the supervision of instruction in his building whether performed by himself or by outside personnel. 7. Building principals are relieved of routine tasks by the employment of sufficient clerical and pro fessional staff. 8. The supervisory organization provides the building principal with supplemental supervisory resources 322 upon request or by a designated schedule. 9. The classroom teacher at all levels of instruc tion is directly responsible to the building principal for the results of instruction in all curriculum areas, 10. The procedure for teachers to obtain aid in their field is well understood by teachers at all grade levels in both elementary and secondary schools. 11. The supervisory organization develops an edu cational environment which stimulates teachers to teach creatively. 12. Teachers have reasonable freedom in the selec tion of teaching methods within the framework of estab lished curricula. 13. The development of the supervisory organization is based on the findings of research, established criteria and recommendations of professional specialists in the fi; eld. 14. The supervisory organization is adequately financed through proper budget appropriation. 15. The supervisory organization includes some personnel with line responsibilities and others with staff functions. 16. Both line and staff functions are performed by administrative personnel only. 17. Staff functions only are performed by consult ants, curriculum specialists, and similar non-administrative 323 personnel. 18. The development and maintenance of good human relations is inherent in the supervisory organization. 19. The supervisory organization encourages and utilizes the maximum creativity of its members. 20. The supervisory organization provides for the appropriate utilization of state and county professional personnel. 21. The supervisory organization provides equal emphasis on the improvement of instruction and learning at both the elementary and secondary levels. 22. The accountability of responsibility for the results of instruction is easily identified through the organizational pattern of supervisory services. 23. Cases of conflict or disagreement between any officers or groups are settled by the next higher adminis trative officer and ultimately by the superintendent. 24. The supervisory organization is periodically reviewed in the light of instructional results achieved at all grade levels in relation to established district objectives. 25. Administrative and functional charts of organ ization with accompanying manuals are up-to-date and available in the school district. 26. Every position in the supervisory organization is filled with the most competent person available and one 324 who is familiar with at least those levels of instruction adjacent to that for which he is directly responsible. 27. Written job responsibilities are reviewed annually within the first month of the school year with every non-teaching professional person by the individual responsible for the professional staff. 28. Written job specifications are available for all administrative and supervisory positions in the dis trict and these specifications show clear-cut responsibili ties and relationships so that each individual knows to whom he is responsible. 29. Written supervisory plans for long-and short- range projects are used as administrative controls to aid administrators and consultants in the planning of their activities. 30. The supervisory organization is as well under stood by those supervised as by the consultants and administrators responsible for supervision. 31. The supervisory organization provides for effective articulation between elementary and junior high school and between the junior and senior high school levels. 32. The supervisory organization includes consult ants in such fields as art, music, physical education, science, and other areas depending on local needs and the nature of the instructional emphasis in the district during 325 any particular period of time. 33. The supervisory organization provides for the periodic employment of out-of-district resource personnel for all grade levels. 34. The amount of time provided for supervisory services is sufficient due to the employment of an adequate number of persons for the prescribed scope of responsi bilities. 35. The supervisory organization provides for specialists who are actively involved in planning and helping to coordinate the educational program vertically as well as horizontally in the fields of their specialties. 36. The supervisory organization provides for the participation of all staff members on vertical as well as horizontal committees. 37. The supervisory organization provides many opportunities for the in-service professional growth of teachers, supervisors, administrators and special per sonnel. 38. The supervisory organization provides for periodic, scheduled, planned conferences in all subject areas and at all grade levels. 39. Periodic conferences involving the principal, teachers and consultants are held as an aid to assure understanding and agreement with regard to teaching methods. 326 40. The evaluation of teachers is done only by administrative personnel at both the elementary and secondary levels. 41. A procedure for the evaluation of each member of the administrative and supervisory staff by his imme diate superior is established and functioning in the school system. 42. Adjustments in the logical lines and duties of personnel in the supervisory organization are made when required by local circumstances. 43. The supervisory organization is evaluated peri odically by established district criteria and by the cooperative efforts of the total staff including teachers representing elementary, junior and senior high school levels. 44. The supervisory organization contains elements of flexibility to the extent that changes can be readily made when necessary. III. CONCLUSIONS The investigation has led to the following conclu sions : 1. The number of specialists in the fields of art, music, mathematics, science and physical education are generally insufficient to meet the needs of elementary teachers. 327 2. No consistent pattern of supervisory organiza tion exists in the unified school districts of California, Instead, organizations for rendering supervisory services are adapted to the nature and needs of the individual school districts. 3. The strengths of unification can be more fully realized by having specialists on the staff involved in vertical as well as horizontal planning. 4. The 6-3-3 plan of organization is presently dominant in the unified school districts of California and is becoming more prevalent as school districts continue to grow. 5. The true role of the high school principal in the modern secondary school needs to be more definitely established. There is evidence that high school teachers do not look to the principal for instructional leadership to the degree that should be expected. 6. Elementary principals, especially, need compe tent help in the special areas of instruction. 7. Each principal should recognize and accept full responsibility for the instructional program in his building, regardless of whether or not he feels competent in all areas of instruction. 8. The lack of funds for supervisory services has become a serious handicap to the educational program in California in the professional judgments of many 328 administrators in the field. 9. The rise of the position of assistant superin tendent in charge of instruction, in addition to similar high-level curriculum workers, is a very encouraging sign for the future of education in California, Coordination and careful articulation between levels of instruction, spearheaded by administrators with curriculum responsibili ties, should result in a more effective and continuous program of instruction for pupils. 10. There are many criteria for supervision, and for the selection of good supervisors, which, if properly understood and applied, would strengthen local programs of supervision. 11. It is evident that those charged with adminis trative and supervisory responsibilities do not have sufficient time to perform their duties adequately. 12. Many professional school employees, especially high school teachers, are not sure of the exact identity of their immediate superior. 13. Very few districts have planned and established their supervisory organizations through the utilization of professional surveys. 14. Clarification is needed with respect to the person or persons actually responsible for the evaluation of teachers. 15. There is a need for a clear understanding of 329 the person or persons to whom senior high school teachers are responsible for the results of instruction. 16. Elementary and junior high school teachers are generally aware that they are responsible to their princi pals for the results of classroom instruction. 17. Many of the unified school districts of Cali fornia are providing traditional supervisory services in special areas but there is need to consider the greater use of specialists for science, mathematics, and for help ing teachers with pupils of high academic potential. 18. The suggestions and viewpoints of classroom teachers and other professional school personnel represent a source of positive and helpful suggestions for strength ening the supervisory organization in the school system. 19. High morale among school personnel working in all areas of the instructional program is more readily attainable if relationships and responsibilities are peri odically reviewed by all concerned. 20. The most appropriate time for professional staff members to work on curriculum construction is still an unsolved problem which needs special consideration and study if curriculum development is to be fostered. 21. The district's chief executive must constantly provide patient and understanding encouragement if the supervisory organization is to be so effective as to meet the demands of a modern educational program. IV, RECOMMENDATIONS 330 The recommendations in this investigation regarding organizational patterns for supervisory services result from an analysis of current practice and the opinions of professional educators in selected unified school districts of California. The recommendations are based on data re ported by chief school administrators and their assistants, other central office administrators, principals, and super visory personnel as well as classroom teachers representing all levels of instruction. 1. In the light of the public's strong demand for an accounting of educational results, all educators should scrutinize objectively the total organization for providing supervisory services in their districts. This evaluation should be done by (a) a professional survey team; (b) self- evaluation through the involvement of teachers, administra tors and special personnel with the use of available cri teria; or (c) a combination of these two approaches. 2. After careful study by a district-wide com mittee, the annual budget should include funds for the purpose of financing supervisory aid beyond that which is rendered by the principals and the central office staff. 3. Master teachers should be utilized as teacher- consultants or curriculum assistants to aid teachers in elementary, junior and senior high schools. Since many 331 elementary teachers feel some inadequacy in teaching science and mathematics, the hiring of teacher-consultants or specialists to aid in these areas should be given serious consideration in those districts not already pro viding such services. 4. The following personnel assigned to the instruc tional division should be considered for the contractual periods as indicated: (1) twelve calendar months' assign ments for assistant superintendents in charge of instruc tion, directors of instruction, of research, and of special services, senior high school principals and assist ant principals, district librarians or coordinators of instructional aids; (2) ten and one-half or eleven calendar months' contracts should be provided for elementary and junior high school principals; and (3) ten or ten and one- half calendar months' assignments should be established for elementary and junior high school assistant principals, curriculum and guidance workers, and all specialists. 5. An assistant superintendent in charge of in struction should be appointed when the pupil enrollment in the school district approximates 4,000. This person should be responsible to the superintendent of schools for all phases of instruction in the district. 6. If directors of elementary and secondary educa tion are employed, they should be made responsible to an assistant or deputy superintendent in charge of instruction 332 in order that the total educational program may be coordinated by one person. 7. Organizational charts and accompanying manuals should be available in all school districts in order to clarify relationships and responsibilities of all per sonnel. 8. The teachers' manual issued by the school system should clearly explain the procedure followed in evaluating teachers and the individual positions responsible for the evaluations. 9. The lack of understanding regarding the indi vidual to whom teachers are responsible for the results of instruction should be clarified in all school systems where any doubt exists. This clarification is a matter of par ticular concern to senior high school teachers. 10. Competent help for special areas of instruction should be provided for a principal and his school by (a) employing specialists as permanent members of the district staff; (b) employing specialists from outside the district on an "as needed" basis; or (c) releasing teachers from classroom duties for a specified period of time to aid other teachers in specific areas of instruction such as reading, music or science. 11. All principals should maintain a high level of professional competency by utilizing all opportunities for in-service growth, including (a) workshops with emphasis 333 on developing good human relations; (b) wide reading in professional journals and books; and (c) periodic graduate study. 12. Districts should experiment with new approaches to replace the traditional system of department heads at the high school level. This is suggested by the facts that supervisory responsibility and structure are least well defined, and dissatisfaction with supervisory results is greatest at the senior high school level, where department organization is not prevalent. Curriculum assistants with responsibilities extending over several disciplines or functions are suggested. This consideration is worthy of considerable study and analysis in the years ahead if the secondary school is to meet the challenge of a rapidly changing world. 13o A number of professional survey teams should be established by the California Association of School Admin istrators which, upon invitation, would assist districts to evaluate their supervisory organizations according to established criteria and community needs. This program could operate on a basis similar to the program of high school accreditation as established by the California Secondary School Principals Association. 334 V. IMPLICATIONS FOR FURTHER RESEARCH This study has pointed up the need for further research in the area of supervisory organization that could touch upon the following aspects: 1. A study to determine the development and extent of the teacher-consultant throughout California or the nation. 2. A study to determine patterns of supervisory organization in (1) elementary districts; (2) union high school districts. 3. A study of the status and trends in the internal organization of senior high schools regarding department heads, curriculum assistants and similar positions. 4. A study to determine the comparative successes in school districts with and without consultants in such special fields as art, music, physical education and science. 5. A study to explore intensively the line and staff relationships in districts employing assistant superintendents in charge of instruc tion or directors of education. 6. A study to determine what superintendents of schools would consider an ideal organizational 335 pattern for various sizes of districts that would provide adequate supervisory services to teachers. BIBLIOGRAPHY BIBLIOGRAPHY A. BOOKS 1. Adams, Harold. Basic Principles of Supervision. New York: American Book Company, 1953. 320 pp. 2. Alberty, Harold B. Supervision in the Secondary School. Boston: D. C. Heath and Company, 1931. 57Tpp. 3. Ayer, Fred C. Fundamentals of Instructional Super vision. New York: Harper and Brothers, 1943. 523 pp. 4. _____, and A. S. Barr. The Organization of Super- vision. New York: D. Appleton and Company, 1928. 397 pp. 5. Barr, A. S., William B. Burton, and Leo J. Brueckner. Supervision: Democratic Leadership in the Improve ment of Learning^ Second edition. New York: D. Appleton-Century Company, 1947. 879 pp. 6. Bartky, John A. Administration as Educational Leader ship. Stanford, California: Stanford University Press, 1956. 256 pp. 7._________. Supervision as Human Relations. Boston: D. C. Heath and Company, 1953. 308pp. 8. Briggs, Thomas H., and Joseph Justman. Improving Instruction Through Supervision. Revised edition. New York: The Macmillan Company, 1952. 523 pp. 9. Caswell, Hollis L., and others. Curriculum Improve ment in Public School Systems. New York: Columbia University, 1950. 462 pp. 10. Cooke, Dennis H., Ray L. Hammon, and Arthur M. Proctor. Principles of School Administration. Minneapolis: Educational Publishers, 1938. 536 pp. 337 338 11. Cubberly, Ellwood P. Public Education in the United States. Boston: Houghton Mifflin Company, 1919. 517 pp. 12. Douglass, Harl R. Modern Administration of Secondary Schools. Boston: Ginn and Company, 1954. 60l pp. 13. Elsbree, Willard S., and Harold J. McNally. Elemen tary School Administration and Supervision. New York: American Book Company, 1951. 457 pp. 14. French, W., J. Dan Hull, and B. L. Dodds. American High School Administration: Policy and Practice. New York: Rinehart and Company, Inc., 1951. 625 pp. 15. Grieder, Calvin, and William E. Rosenstengel. Public School Administration. New York: The Ronalcl Press Company, 1954. 622 pp. 16. Griffiths, Daniel E. Human Relations in School Admin istration. New York: Appleton-Century-Crofts, Inc., 1956. 458 pp. 17. Knight, Edgar W. Readings in Educational Administra tion. New York: Henry Holt and Company, 1953. 335"pp. 18. Kyte, George C. The Principal at Work. Revised edi tion. Boston: Ginn and Company, 1952. 531 pp. 19. Melchior, William T. Instructional Supervision. Boston: D. C. Heath and Company, 1956. 485' pp. 20. Moehlman, Arthur B. School Administration. Boston: Houghton Mifflin Company, 1946. 929 pp. 21. _______ . School Administration. Second edition. Boston: Houghton Mifflin Company, 1951. 514 pp. 22. Monroe, Walter S. Encyclopedia of Educational Research. New York: The Macmillan Company, 1952. 1520 pp. 23. Pittman, M. S. The Value of School Supervision. New York: Warwick and York, 1921. 129 pp. 24. Reeder, Edwin H. Supervision in the Elementary School. Boston: Houghton Mifflin Company, 1953. 386 pp. 339 25. Reeder, Ward G. The Fundamentals of Public School Administration^ Third edition. New York: The Macmillan Company, 1951. 756 pp. 26. Roethlisberger, F. J. Management and Morale. Cam bridge, Massachusetts: Harvard University Press, 1951. 194 pp. 27. Sears, Jesse B. Public School Administration. New York: The Ronald Press Company, 1947. 533 pp. 28. Spears, Harold. Improving the Supervision of Instruction. New York: Prentice-Hall, Inc., 1953. 478' pp.---- 29. Supervisory Management Staff (ed.). Leadership on the Job. Edited by the Staff of Supervisory Management. New York: American Management Asso ciation, 1957. 303 pp. 30. Wiles, Kimball. Supervision for Better Schools. New York: Prentice-Hall, Inc., 1950. 350 pp. B. PERIODICAL ARTICLES 31. Albert, Sister Mary, and Nora C. Meredith. "Curricu lum Assistant, Educational Administration and Supervision, 42:469, 1956. ~ 32. Amundson, Carl L. "Today's Trend in Administration," National Association of Secondary School Princi pals Bulletin. 33:39-44. 33. Atkinson, Byron H. "School Administration Reaches Adolescence," American School Board Journal, 126:21-22, June 1953. 34. Beaumont, J. A., and others, "Consultant Service Re port as a Function of Administration," National Business Education Quarterly. 21:15-21, May 1953. 35. Bolmeier, R. C., and K. P. Walker, "Basic Principles of School Administrative Organization," American School Board Journal. 122:21-22, March 1931. 36. Bradfield, L. E. "Basic Principles Underlying Tech niques of Supervision," American School Board Journal, 128:21-23, 19541 340 37. 38. 39. 40. 41. 42. 43. 44. 45. 46. 47. 48. 49. Bradley, Harry M., and Thomas Murray. "The ABC's of Supervision," American School Board Journal, 125:31-32, July 1952. Caswell, Hollis L. "Administrative Provisions for Curriculum Improvement," Teachers College Record, 52:157-72, December 1950. Courtis, S. A. "Measuring the Effects of Supervision in Geography," School and Society, 10:61-70, 1919. Crawford, Will C. "The Superintendent and Educational Leadership," School Executive, 71:72-73, December 1950. Fishback, W. W. "Improving Instruction Through Con sultive Services," Educational Administration and Supervision, 36:374-77, October 1950. Ford, Willard S. "The Relation of the Board of Edu cation to the Staff," American School Board Journal, 79:35-37, November 1929. Greenfield, B. L. "A Study of the Effectiveness of a Program of Elementary School Supervision," Journal of Educational Research, 27:123-26, 1933. Grieder, Calvin. "Let's Experiment in Administrative Personnel," Nation's Schools, 35:29-30, May 1945. Hansen, Abel A. "The Superintendent's Role in In struction," School Executive, 72:19-21, June 1953. Hull, J. H. "Value of Continuing Professional Con sultant Service," School Executive, 71:44, February 1952. Katz, Robert L. "Skills of an Effective Administra tor," Harvard Business Review, 33:37, January- F eb ruary 1955. Lake, Ernest G. "The New 'Look' in School Organiza tion and Administration," American School Board Journal, 126:29-30, February 1953. Lawler, Marcella R. "Raising the Level of Consultant Service," Educational Leadership, 5:445-50, April 1948. 341 50. McClellan, H. N., et al. "Administrative Organiza tion," NationaT'Association of Secondary School Principals? 35:88-98. December 1951. 51. Omstein, Jacob A. "The Problem of Supervision: Look OutI Your 'Steps' Are Showing!" High Points, 32:15-19, November 1950. 52. Otto, Henry J. "Internal Organization of Schools and School Systems," Review of Educational Research, 16:321-33, October 1946. 53. Reavis, W. C. "Place of the Consultant: School Admin istrator Needs the Expert for Special Problems," Nation's Schools, 41:24-25, April 1948. 54. Rogers, Frederick Rand. "Fundamental Principles of Personnel Organization and Control," American School Board Journal. 88:25-26, February 1934. 55. Shannon, J. R. "Relative Serviceability of Frequency of Use of Services for Improving Teachers in Service," Journal of Educational Research, 34:179- 188, May 1941. 56. Spears, Harold. "Supervision in Transition," Educa tional Leadership, 11:368-71, March 1954. 57. Story, M. L. "Line-and-staff Weaknesses," School and Society. 73:197-98, March 1951. C. PUBLICATIONS OF LEARNED ORGANIZATIONS 58. Brink, William G. Direction and Coordination of Supervision. Northwestern University Contribu tions to Education, School of Education Series No. 3. Bloomington, Illinois: Public School Publishing Company, 1930. 117 pp. 59. California Elementary School Administrators' Associa- tion, California Looks at the Elementary School. Published by the Association, Vol. 27, 1955. 216 pp. 60. ______ , The Future Elementary School Administrator. Twenty-fifth Yearbook. The Association, 1953. 268 pp. 342 61. Changing Concepts in Educational Administration. Forty-fifth Yearbook, Part II, National Society for the Study of Education. Chicago: University of Chicago Press, 1946. 186 pp. 62. Cocking, Walter D., and Charles H. Gilmore. Organi zation and Administration of Public Education. Staff Study Number 2. Prepared for the Advisory Committee on Education. Washington, D.C.s United States Government Printing Office, 1938. 183 pp. 63. Cooperative Program in Educational Administration. Middle Atlantic Division. Decision Making and American Values in School Administration. New York: Bureau of Publications, Teachers College, Columbia University, 1954. 99 pp. 64. Kyte, George C. "Direction of Instruction," Educa tion and Society. Berkeley and Los Angeles: University of California Press, 1944. 167 pp. 65. McGinnis, William C. School Administrative and Super visor Organizations in Cities of 20.000 to SO.QOO Population. Contributions to Education, No. 392. New York: Bureau of Publications, Teachers Col lege, Columbia University, 1929. 103 pp. 66. Melby, Ernest 0. Organization and Administration of Supervision. Northwestern University Contribu- tions to Education, School of Education Series No. 1. Bloomington, Illinois: Public School Publishing Company, 1929. 158 pp. 67. National Conference on Educational Method. Educa tional Supervision. First Yearbook. New York: Bureau of Publications, Teachers College, Columbia University, 1928. 270 pp. 68. National Education Association, American Association of School Administrators. The American School Superintendency. Thirtieth Yearbook. Washington, D.C.: The Association, 1952. 663 pp. 69. _, Association for Supervision and Curriculum Development. Leadership Through Supervision. 1946 Yearbook. Washington, D.C.: The Association, 1946. 163 pp. 343 70. National Education Association, The Department of Superintendence. The Superintendent Surveys Supervision. Eighth Yearbook. Washington, ”D.C.: The Association, 1930. 471 pp. 71. ______ , Department of Supervisors and Directors of Instruction. Current Problems of Supervisors. Third Yearbook"! New York: Bureau of Publications, Teachers College, Columbia University, 1929. 270 pp. 72. ______ , Department of Supervisors and Directors of Instruction. Evaluation and Supervision. Fourth Yearbook. New York: Bureau of Publications, Teachers College, Columbia University, 1931. 181 pp. 73. Educational Policies Commission. Public Education and the Future of America. Washington, D.C.: Educational Policies Commission and The American Association of School Administrators, 1955. 98 pp. 74. Rorer, John A. Principles of Democratic Supervision. Contributions to Education, No. 858. New York: Bureau of Publications, Teachers College, Columbia University, 1942. 230 pp. D. PAMPHLETS AND BULLETINS 75. ’ ’ Educational Change in Reorganized School Districts,” Bulletin No. 4, 1953, United States Office of Education. Washington, D.C.: United States Gov ernment Printing Office, 1953. 53 pp. 76. Hoppes, W. C., and others. The Value of Supervision in Rural Schools of Oakland County. Bulletin of Michigan Education Association, No. 7. Lansing, Michigan, 1926. 40 pp. 77. National Education Association. "The Questionnaire," Research Bulletin No. 1. Volume VIII. Washington, D.C.: Research Division, National Education Asso ciation of the United States, January 1930. 51 pp. 344 78. "Organization and Supervision of Elementary Education in 100 Cities," Bulletin No. 11. 1949. United States Office of Education. Washington, D.C.: Government Printing Office, 1949. 83 pp. 79. Ovsiew, Leon. Emerging Practices in School Adminis tration for Communities, Teachers. Boards, anct Administrators^ New York: Metropolitan School Study Council, 1953. 95 pp. 80. Reavis, W. C. Bulletin No. 40. Department of Second ary School Principals. Washington, D.C.: Research Division, National Education Association of the United States, 1932. 305 pp. 81. School Administration in California--A Pattern for the Future. A Report from the California Commis sion on Public School Administration, Sacramento, California, 1956. 63 pp. E. UNPUBLISHED MATERIALS 82. Doss, Jesse P. "Tendencies Toward Centralization and Decentralization of Control in Educational Admin istration in California from 1900-1950." Unpub lished Doctor's dissertation, The University of Southern California, Los Angeles, 1951. 405 pp. 83. Early, Lloyd F. "An Introductory Course in Public School Administration and Organization." Unpub lished Master's thesis, The University of Southern California, Los Angeles, 1950. 98 pp. 84. Ensz, Elmer. "Areas and Sources of Educational Lead ership in California School Districts." Unpub lished Doctor's dissertation, The University of Southern California, Los Angeles, 1949. 241 pp. 85. Freese, Theron. "A Study of the Position of Assistant Superintendent in Charge of Instruction— Its History, Status, and Functions." Unpublished Doctor's dissertation, The University of Southern California, Los Angeles, 1955. 363 pp. 86. Gilmore, Hugh M. "Principles of Organization for the Administration of Public Education in the City School Systems." Unpublished Master's thesis, The University of Southern California, Los Angeles, 1934. 132 pp. 345 87. Hogaman, Neva C. "A Critical Study of the Supervisory Activities That Facilitate the Adjustment of New Teachers in Needles School District." Unpub lished Master's thesis, The University of Southern California, Los Angeles, 1944. 110 pp. 88. Johnson, James Burris. "The Development of Criteria for an Evaluation of the Supervisory Program in the Schools of Alton, Illinois." Unpublished Doctor's dissertation, Washington University, St. Louis, Missouri, 1955. 261 pp. 89. Johnson, Ray W. "Principles of Internal Organization for Public School Administration." Unpublished Doctor's dissertation, The University of Southern California, Los Angeles, 1952. 237 pp. 90. Lubera, Thaddeus J. "Intermediary School Officers in Large Cities." Unpublished Doctor's dissertation, The University of Chicago, Chicago, 1947. 186 pp. 91. McGovern, Elcy. "A Critical Evaluation of California General Elementary County School Supervision." Unpublished Doctor's dissertation, The University of Southern California, Los Angeles, 1948. 253 pp. 92. Melbo, Irving R., Director. "A Report of the Survey of the Public Schools of Arcadia City School Dis trict." Arcadia, California: Board of Trustees, Publisher, 1947. 204 pp. 93. "Factor in District Organization." Pub- lished by authority of the governing Boards of Baldwin Park, Charter Oak, Covina, West Covina and Covina Union High School District, 1958. 148 pp. 94. _______. "Palo Verde Valley Unified School District Survey." Published by authority of the governing Board of Palo Verde Unified School District, 1953. 413 pp. 95. Murray, Earl. "The Functioning of the Non-teaching Certificated Personnel in Certain Public School Districts in California." Unpublished Doctor's dissertation, The University of Southern Cali fornia, Los Angeles, 1953. 411 pp. 346 96. Riley, James B. "A Comparative Investigation of the Supervisory Program of California Rural Schools and Currently Accepted Techniques." Unpublished Master's thesis, The University of Southern California, Los Angeles, 1941. 97. Stoops, Emery. "The Organization and Administration of Certain Major Supervisory Services at the Secondary Level in Large City School Systems." Unpublished Doctor's dissertation, The University of Southern California, Los Angeles, 1941. 303 pp. F. ADDENDA 98. California State Department of Education. The Annual Report of Financial Transactions of California State Districts, fiscal year 1949-50. Sacra mento: California State Department of Education, 1950. 233 pp, 99. . Apportionment of the State School Fund— Part I. For the fiscal year ending June 30, 1959. Sacramento: California State Department of Educa tion, December 1958. 182 pp. APPENDIX A QUESTIONNAIRE DIRECTED TO SELECTED CALIFORNIA UNIFIED SCHOOL DISTRICTS j abbreviations, in- /n th s o f m e n t L ength o f co n tract in years <2 4 348 ORGANIZATIONAL PATTERNS FOR SUPERVISORY SERVICES IN SELECTED CALIFORNIA UNIFIED SCHOOL DISTRICTS A Study By HENRY S. MOLINO A ssistant Superintendent of Schools - Instruction Arcadia Unified School District Arcadia, California SCHOOL DISTRICT_______________________________________ LOCATION_______________________________________________ NAME OF RESPONDENT______________________________________________________________________________________________ POSITION OF RESPONDENT__________________________________________________________________________________________ _ DATE______________________________________________________ YEARS IN PRESENT POSITION____________________________ A. SCHOOL DISTRICT ORGANIZATION District's O rganizational Pattern (8-4; 6-3-3; etc)_________________________________________________ . Total enrollment, K-12, for October, 1957 _______________________________________________________________ Total num ber of full-time classroom t e a c h e r s _ _ _ _ ________________________________ ____________________________ B. CLASSIFICATION OF PERSONNEL Please indicate the num ber of individuals engaged in the positions listed below. By using abbreviations, in dicate to whom each person is responsible. 1. Administrative-supervisory F ull-tim e po sitio n eq u iv alen ts To w h o m re sp o n sib le C alen d ar m o n th s of em p lo y m e n t Length o f co ntract in years Superintendent l Board 12 4 Deputy superintendent A ssistant superintendents: Business Instruction Personnel Special Services Elementary Principals Assistant principals Jr. High or 7-8 Gr. Principals Assistant principals Sr. or 4-yr high sch. Principals Assistant Principals Deans Curriculum Consultants 2. Supervisory (S erving m ore then one school) Full-time position equivalents To w hom responsible fo r results of instruction M onths of em ploym ent C -calendar S-sch. mo. School grades served Example: Elem. Curr. Coord. V/2 Asst. Supt. Inst. 10 c K-6 General supervisor Primary supervisor Music supervisor Art supervisor Curriculum director Curriculum coord. Research director 3. Special Teachers (serving m ore then one school) Vocal music Instrumental music Physical education Speech therapy Home instruction Physically handicap Mentally handicap Remedial reading 4. Special services (serving m ore than one school) Attendance counselor Attendance supervisor School nurse Psychologist Psychometrist Audiometrist Dental hygienist Physician C. FACTORS AFFECTING ORGANIZATION W h a t M AJOR factors such as available personnel, finances, teach er needs, etc., influenced the establishm en of the PRESENT organization of supervisory services in your district? D. UNDERSTANDING THE SUPERVISORY ORGANIZATION To w hat extent do you believe the ORGANIZATION for rendering supervisory services in your district is under stood by th e four groups below? (1-well understood; 2-som e m isunderstandings; 3-definately misunderstood) E. RELATIONSHIPS BETWEEN SUPERVISOR A N D PRINICIPAL How are an y disagreem ents resolved betw een th e principal and a supervisor on th e superintendent's staff garding m ethods an d techniques of teaching? F. RELATIONSHIPS BETWEEN TEACHERS A N D SUPERVISORY PERSONNEL In m atters pertaining to m ethods and techniques of teaching, the teachers generally follow the instruction given by: 1 2 3 TEACHERS 1 2 3 SUPERVISORS 1 2 3 PRINCIPALS 1 2 3 SUPT. A N D ASSISTANTS .the supervisor .the principal G. RELATIONSHIPS AM ONG SUPERVISORY PERSONNEL How a re working relationships an d responsibilities established am ong supervisory personnel in your district? H. ACHIEVEMENT OF INSTRUCTIONAL GOALS In your professional judgment, to what degree does the ORGANIZATION for rendering supervisory services in your district m ake possible the attainm ent of the instructional goals of the district? Highly satisfactory Satisfactory Improvement desirable I. RESPONSIBILITIES FOR RESULTS OF INSTRUCTION To whom is each of the following groups of classroom teachers responsible for the RESULTS of instructions? Grade Level Regular subjects (m a th ., read in g , e tc .) Special subjects (a rt, m usic, e tc .) Kng. - Primary Elementary Jr. High or 7-8 Sr. or 4-yr high school J. COORDINATION OF SUPERVISION W hat POSITION in your district carries the responsibility for coordinating the supervisory program? K. MAJOR STRENGTHS OF THE SUPERVISORY ORGANIZATION W h at do you consider to be the major strengths and most promising features of the supervisory organization as it now exists in your district? L. IMPROVING THE SUPERVISORY ORGANIZATION W hat do you consider to be desirable modifications in order to strengthen the supervisory organization in your district? M. INFLUENCE OF THE SUPERINTENDENT Specifically, what can the superintendent of schools do to further strengthen the supervisory organization in the district? APPENDIX B QUESTIONNAIRE DIRECTED TO ADMINISTRATIVE-SUPERVISORY STAFF MEMBERS IN SIX SELECTED CALIFORNIA UNIFIED SCHOOL DISTRICTS AND SUPERVISORY PERSONNEL a H m * H w a H o > Q 3 M CO H § H c s CO H «Q CO H M i M detailed study to statements reived. N o consideration s approved the in dent o f all professional ol or grade level or/and uch are designed to strengthen 350 A STUDY OF SUPERVISORY ORGANIZATIONS FORM I To: Members of the administrative-supervisory staff: From a preliminary survey of fifty-six unified school systems in California, your district is one of six selected for a detailed study o f organizational patterns for rendering supervisory services. One phase o f the study requires obtaining responses to statements from teachers and administrative-supervisory personnel. Your aid in this study w ill be very much appreciated. Responses w ill be used in conjunction with similar data received. N o reference w ill be made to : ;dividual persons or school districts. W hat Y O U think is all-important so your careful consideration is requested. Your written comments to the right of each statement will he especially helpful. Your superintendent, w ho is vitally interested in continually strengthening the total educational program, has approved the in clusion o f the district in the study. Definitions: (1 ) The term "supervisory organization” as used in this check-list refers to the arrangement of all professional personnel with responsibilities for improving instruction whose duties extend over more than one school or grade level or/and who supervise the work of other professional personnel. (2 ) The term "supervisory program” refers to the organized and planned professional activities which are designed to strengthen teaching. A. IDENTIFYING DATA 1. School District_________________________________________________________________________________________________________________ 2. Years of experience in this district . less than one year 1-3 years 4-10 years over ten years 3. Sex male female 4. M y present assignment covers the follow ing grade levels K-3 _____ 4-6 K -6 _____ 7-8 K-8 ______7-9 other_____________________________ K-12 ______9-12 5. My present position is_______________________________ __________________________________________________________________________ 6. The PO SITIO N o f my immediate superior is__________________________________________________________________________________ 7. The PO SITIO N in the district that carries the M A IN responsibility for coordinating the supervisory program is. B. Please respond to the following statements by checking one or more, C. Please record suggestions for strengthening THIS whichever is applicable. PHASE of the supervisory organization or pro gram in this district. 1. One of the requirements of my position is the formal, written rating of teachers the informal, casual rating of teachers no formal or informal rating of teachers 2. I consider my position to be line (administrative) staff (advisory) both line and staff 3. A review of my job responsibilities was discussed with me by my immediate superior this year within the last two years T can't remember the last time 4. The TIME available for the total demands of my assignment is adequate less than adequate very inadequate 5. There is a written job specificiation for my position yes no I’m not certain 6. Conferences involving individuals in my area of responsibility are held weekly hi-weekly monthly on call other ......................... . ... ..... ... 7. I am required to have a written supervisory plan for the activities in my area of responsibility yes no I’m not certain Please respond to the following statements by checking one or more, Please record suggestions for strengthening THIS whichever is applicable. PHASE of the supervisory organization or program in this district. 8. I have participated on at least one curriculum committee in the district with responsibility extending through the elementary and secondary levels . . yes ..... . no ...I don’t remember 9. For the results o f instruction in regular ACADEM IC subjects math., reading, etc.), the classroom teacher is responsible to the principal supervisor or consultant _ . department chairman . supt. or assistant other . . ...I’ m not certain 10. For the results o f instruction in SPECIAL subjects (art, music, etc.), the classroom teacher is responsible to the principal supervisor or consultant ... .....department chairman .. supt. or assistant other .......... . ............I'm not certain 11. Agreements regarding teaching methods and techniques are reached by the principal and supervisor by .......... conferences reviewing the policies o f the district referring the m atter to a district adm inistrator 12. There are provisions for obtaining outside resource personnel to assist with the in-service growth of the professional staff .... yes .........no I’m not certain 13. The present organization for rendering supervisory services has developed through (check all applicable statements) . available personnel in the district .... ...financial considerations needs of pupils and teachers ... ... rapid growth o f the district ..the philosophy o f the district professional surveys ....... small size of the district I ’m nnf certain hnw it developed Please respond to the following statements by checking one or more, Please record suggestions for strengthening THIS whichever is applicable. PHASE of the supervisory organization or program in this district. 14. The supervisory organization is reviewed and evaluated periodical ly in the light of results achieved and in relation to established ob jects of the school system ... yes ... no . I’m not certain 15. Changes in the organization to render supervisory services to teach ers, if changes were desirable ........could be readily made . . would be difficult to achieve would be nearly impossible to achieve 16. Regarding the O R G A N IZA TIO N for rendering supervisory services to teachers in this district . . . I understand it very well T have some m isunderstandings about it T definitely do not understand about it 17. The DEGREE to which the supervisory organization makes pos sible the articulation between various levels o f the instructional program ........ is highly satisfactory . ... is satisfactory indicates that im provem ent is desirable 18. The DEGREE to which the organization for rendering supervisory services contributes to the attainment of the instructional goals of the district . . is highly satisfactory . is satisfactory indicates that improvement is desirable 19. The areas where MORE supervisory help to teachers is needed in the district are 1. 2. 3. 20. Other areas in which I feel there is need to strengthen the O R G A N IZA TIO N for rendering supervisory services to teachers to constantly improve instruction in the district are 1. 2. 3. T H A N K Y O U FOR YOUR TH O UG H TFUL ANALYSIS OF THESE STATEM ENTS Please return the check-list in the manner directed. APPENDIX C QUESTIONNAIRE DIRECTED TO TEACHERS IN SIX SELECTED CALIFORNIA UNIFIED SCHOOL DISTRICTS a H o Hi w a HI o p o 3 3 M a cn n < W «Q CO H detailed study to statements d. N o refer- sration is re- ^pproved the in- d professional person- ode level or/an d who a are designed to strengthen 352 A STUDY OF SUPERVISORY ORGANIZATIONS FORM II { To: Teachers i From a preliminary survey of fifty-six unified school systems in California, your district is one of six selected for a detailed study of organizational patterns for rendering supervisory services. O ne phase o f the study requires obtaining responses to statements from teachers” and ~admininistrative;supervisory personnel. Your aid in this study will be very much appreciated. Responses will be used in conjunction with similar data received. N o refer ence will be made to individual persons or school districts.. W hat Y O U think is all-important so your careful consideration is re quested. Your written comments to the right of each statement w ill be especially helpful. Your superintendent, who is vitally interested in continually strengthening the total educational program, has approved the in clusion of the district in the study. j Definitions: (1 ) The term "supervisory organization” as Used in this check-list refers to the arrangement of all professional person nel with responsibilities for improving instructions whose duties extend over more than one school or grade level or/and who supervise the work of other professional personnel. (2 ) The term "supervisory program” refers to the organized and planned professional activities which are designed to strengthen teaching. A. IDENTIFYING DATA 1. School District, ............. ............................ .....__________ ..., ......., ..... , --------- ---------------- ----------------------- 2. Years of experience in this district [ ' ■ less than one year j 1-3 years I , 4-10 years | over ten years ■ 3. Sex male female 4. My assignment covers the following grade level (s),___________________________________________________ 5. I am teaching in a departmental area in junior/senior high school and my M A IN subject assignment is. 6. The POSITION of my immediate superior is ______ ____ __________________ ______ — ----------------------- B. Please respond to the following statements by checking one or more, C. Please record suggestions for strengthening THIS whichever is applicable. PHASE of the supervisory organization or pro gram in this district. 1. For the results of instruction in regular ACADEMIC subjects (math., reading, etc.), I am responsible to the principal supervisor or consultant supt. or assistant department chairman other I’m not certain 2. For the results of instruction in SPECIAL subjects (art, music, etc.), I am responsible to the principal i . supervisor or consultant department chairman supt. or assistant other .. . . .................. . I’m not certain t 3. Regarding teaching METHODS, I generally follow instructions given by the principal supervisor or consultant department chairman supt. or assistant other T ’m not certain 4. Grade-level or subject area meetings are held ' periodically on call infrequently 5. The DEGREE to which I feel I have freedom in determining methods of teaching and using my own iniative and creativity in my classroom is -------- high satisfactory limited 6. The DEGREE to which I have been able to grow professionally in the district is _ _ — high satisfactory limited Please respond to the following statements by checking one or more, Please record suggestions for strengthening THIS whichever is applicable. PHASE of the supervisory organization or program in this district. 7. The evaluation o f my work as a teachers is performed by the principal ' . . . . .......supervisor or consultant ...........department chairman supt. nr assistant several people together I’m not certain 8. I have participated on at least one curriculum committee in the dis trict with responsibility extending through the elementary and secondary levels .... _..yes .......no I don’t remember 9. The procedure for obtaining help in my teaching field is ........ well-known to me not clear to mq very confusing* to me 10. Regarding the O RGANIZATION for rendering supervisory ser vices in this district I understand it very well have some misunderstandings about it definitely do not understand it - 11. The A M O U N T of supervisory help provided in the district is .......... adequate ........ inadequate ....... ...very inadequate 12. I feel the supervisory personnel in the district, including the princi pal, have sufficient time to render needed supervisory help to ; teachers _____ .yes N o .... .....I’m not certain 13. Out-of-district personnel have been made available to assist in the in-service training activities o f teachers yes no I’m not certain 14. The areas where MORE supervisory help to teachers is needed in this district are 1. 2. 3. 15. Other areas in which I feel there is need to strengthen the ORGANIZATION for rendering supervisory services to teachers to constantly improve instruction in this district are 1. 2. 3. . T H A N K YO U FOR YOUR THOUGHTFUL ANALYSIS OF THESE STATEMENTS Please return the check-list in the manner directed. APPENDIX D VALIDATION FORM FOR QUESTIONNAIRE 354 Dear Fellow Educator: Your professional aid is requested in responding to the five questions below AFTER you have completed the ques tionnaire. Your reactions will be used to further refine the survey instrument. Thanks very much for any assistance you are able to give. Henry S. Molino 1. Which questions or explanations were not clear to you? 2. What changes would you suggest for greater clarity? 3. What, if anything, is lacking in importance to the ex tent that it should be deleted from the questionnaire? 4. What, if anything, is of sufficient importance that it should be added to the questionnaire? 5. How much time did you require to complete the question naire itself? Date Respondent APPENDIX E LETTER OF TRANSMITTAL 356 October 24, 1957 Dear Fellow Educator: Little information is available on the extent, organiza tion, and functions of the staffs of the assistant super intendent in charge of instruction of California Unified school districts. Because of this, we are conducting a study to determine practices regarding supervisory organi zations in such districts. Will you assist us by complet ing the attached blank which takes about thirty minutes? We are assuming you also are interested in knowing the answers to the questions raised and will be sent a summary of the findings upon compilation of the returns. The data collected will be considered confidential and used only as part of the total data gathered from other districts throughout the State. Neither your name nor that of your district will be used in reporting the results so that identification of the answers from any one district will not be possible. Your cooperation is respectfully requested and is most gratefully acknowledged in advance. We sincerely hope you will assist us in this professional problem. A stamped, self-addressed envelope is enclosed for your convenience. Very cordially yours, Henry S. Molino Asst. Superintendent (Instruction) Arcadia Unified School District Arcadia, California APPENDIX F FOLLOW-UP LETTERS 358 November 14, 1957 Dear Fellow Educator: You may be interested in knowing that the study under way as described in my letter to you about four weeks ago has made excellent progress. The response has been truly gratifying and I am most appreciative of the splendid cooperation to date. At the time of mailing this letter, a return from your dis trict had not yet been received. However, it is entirely possible that our letters may have crossed so if this is the case, please disregard this letter. If you have not had the opportunity to complete the form yet, and this is understandable these days, may I hear from you soon so (name of district) may be included in the study? The relatively small number of unified school districts in California makes a high percentage of participation most essential. Too, a geographic representation in the State is most desirable and this is another reason I would very much like to see (name of district) included in the study. Could you possibly send the completed form within the next few days, please? In case you may have mislaid the form, another copy is enclosed for your convenience. Again, many thanks for your cooperation in this matter. Sincerely, Henry S. Mo lino Asst. Superintendent (Instruction) Arcadia Unified School District Arcadia, California 359 February 21, 1958 (Heading) Dear Mr._________________: First, let me express my sincere thanks for your coopera tion in returning the questionnaire sent to you earlier this fall. You may be interested to know that of the sixty unified districts contacted, fifty-five or 92 per cent responded. The results of the tabulation will be mailed to you upon its completion. I feel sure you will be inter ested in the results. Now, I'm wondering if you would be willing to participate in the final phase of the study--namely the sampling of opinion from members of the administrative, supervisory and teaching staffs regarding the district s supervisory organization. Briefly, the plan would be this: 1. The enclosed Form I (yellow) is intended to be distrib uted to administrators, supervisors, etc., and as many as possible urged to participate. 2. The enclosed Form II (green) is intended to be distrib uted to every third or fourth teacher in Grades K-12. 3. The completed forms would be mailed directly to me by the respondents in self-addressed envelopes which I would furnish. To assure complete anonymity, no one in the district would see the returns. 4. A summary of your district's responses would be returned to you within two weeks after I had received the data with an interpretation based on data collected from other unified districts in California and criteria being formulated from the total study. I am contacting only six districts in California for this final phase of the study and would very much like to see (name of district) as representing one of the bay area districts. I plan to be in San Francisco during the week of March 9- 14 inclusive, attending the CASA Convention and will be staying at the Palace Hotel. I would be most appreciative of the opportunity to make an appointment with you to Mr -2- 360 February 21, 1958 discuss the matter in more detail. As you look over the enclosed material, the value to the district would include: 1. To discover if the various levels of the profes sional staff— teachers, supervisors, administra tors --all understand the district’s program and organization for rendering supervisory services to teachers. 2. To determine if duties, responsibilities and rela tionships are clear-cut in the minds of staff members. 3. To stimulate self-evaluation and analysis of the district organization. 4. To obtain specific suggestions and comments from the staff as to strengthening and improving the supervisory organization. 5. To gather information for in-service discussion by the administrative staff whose responsibility is to work constantly toward improvement of supervision. Will you kindly discuss this matter with your superintend ent and other members of your staff and let me know your interest by March 7th by using the enclosed sheet? Should you decide to participate or indicate you wish more infor mation, I shall call you from San Francisco on March 10th to verify the appointment schedule you have checked. If you plan to attend the CASA Convention, please note it on the slip and we may be able to get together in San Fran cisco- -otherwise I would be glad to come out to your district office. Again, my sincere thanks for your initial aid and for con sidering this "last stage" of the study. A reply by March 7th will be deeply appreciated if that is at all possible. Very cordially yours, HSMrrnd Gnc. 4 Henry S. Molino 361 (UNIFIED SCHOOL DISTRICT) Mr. Molino: Yes, count us in on the study as described in your letter. Would like to know more about it; call us from San Francisco. I am reserving March 12 13 14 at __________ o'clock for an appointment to discuss the matter further. Place___________________(if not Unified District Office) Comments: Date Name 362 (Heading) Dear____________ : Just before leaving the Bay Area last Thursday, I mailed the survey forms based on the information I was able to obtain from the directory which you so promptly sent me. Thanks a lot for shooting it right out because I was able to assign all the forms before coming south. You will notice that all schools are separated and the allocation of the two forms described on the summary sheets (two copies) and also on each package. I'm certain that the instructions are self-explanatory for all who will handle the material. Should you have any questions whatsoever, please get in touch with me. You will have to use your own judgment as to the distribu tion of the material. If it could be done previous to Easter vacation with a good chance for maximum return, fine. However, if you feel it would be better to wait until after the holidays do it at that time. I'll leave that entirely up to you. Only one suggestion— whoever issues the forms to the teachers should follow it up to make sure that the completed form has been mailed— other wise we will not have as adequate a sampling as you would wish. __________ , again my most sincere thanks to you for your fine cooperation. I only wish we could have had more time to chat about the "Future of education"! Also, I appre ciated the opportunity to meet and talk with your super intendent. Very cordially yours, Henry S. Mo lino 363 April 22, 1958 (Heading) Dear _____________: Since it has been some time since I communicated with you, I thought it wise to check and see how things are develop ing in regard to the study we discussed in San Francisco. I'm assuming the material has not been distributed and am wondering if it is scheduled to be issued after Public Schools Week or whatever other plans you may have. Could you just drop me a note and let me know, please? I have found that two weeks is plenty of time to give the respondents a chance to answer so you might want to use that as a guide. As I mentioned in my last letter, it is important that the principal "check off" those who do mail in the material in order that as high a percentage as pos sible be obtained to give a cross-section of opinion. Thanks for anything you can do, and I would appreciate a card or note indicating the distribution schedule. Sincerely yours, Henry S. Mo lino 364 INSTRUCTIONS ON THE USE OF THE SURVEY INSTRUMENT Purpose of the Instruments; 1. To aid in one phase of a State of California study in the development of practical criteria for rendering supervisory services to teachers. 2. To discover if the various levels of the professional staff--teachers, supervisors, administrators— all under stand the district*s program and organization for rendering supervisory services to teachers. 3. To determine if duties, responsibilities, and relation ships are clear-cut in the minds of staff members. 4. To stimulate self-evaluation and analysis of the dis trict organization. 5. To obtain specific suggestions and comments from the staff as to strengthening and improving the supervisory organization. 6. To gather information for in-service discussion by the administrative staff whose responsibility is to con stantly work toward improvement of supervision. Administration of the Instruments: Form I: To be distributed to (1) administrative personnel; (2) specialists, consultants or supervisors whose duties extend over more than one school or grade level or/and who supervises the work of other professional personnel. Form II: To be distributed on a random basis (one to every third or fourth person) to (1) classroom teachers K-12; (2) special teachers; (3) nurses; (4) to any other profes sional staff member whose position may not appear to be included in any of the categories mentioned. The check lists should be completed as soon as possible after receipt and placed in tne self-addressed envelope for mailing. No person in the participating district will see the individual responses— thus assuring complete anonymity. The district will receive a summary of the data collected for use in studying its own supervisory organization. 365 July 19, 1958 (Heading) Dear ___________ : Enclosed in this folder is a summary of the survey con ducted with your permission in (name of district) this Spring. Also included are the three forms used to gather the information. The summary of material as a result of the use of the white form which you completed earlier will be distributed next Fall and you will surely receive a copy. I believe you will find the material self-explanatory. As you study the percentage of responses to various questions, I'm sure you will see the implications for your particular district. I have found in all districts studied much interesting data which should be used for in-service edu cation with both teachers and administrative-supervisory personnel. I hope you will find this material helpful to you as you continue to strengthen the total program of education in your district. The suggestions summarized on pages 8-10, inclusive, are those taken from responses to the last two items on Forms I and II. The numbered comments starting on page 11 are those made throughout the sections of Forms I and II. The two asterisks (**) between the statements divide responses to different statements on the forms. The statements are direct quotations made by the respondents with only enough editing to make the statements clear as to specific refer ences. However, very little editing was needed and I feel sure the suggestions and comments will give you insights which will be meaningful to you. . if there are any questions which you may wish to directto me in regard to any of this material, do not hesitate to get in touch with me. It may be necessary for me to check with you again and if so I'll communicate with you. Feel free to use this material in any way which you feel would be most helpful to your district. I hope you will express my sincere thanks to the staff for the time and effort in responding. My most grateful thanks to you for your cooperation and willingness to participate and to Mr. ___________ for his approval to make the study. Very cordially yours, Henry S. Molino APPENDIX G PARTICIPATING DISTRICTS LISTED BY COUNTIES 367 PARTICIPATING DISTRICTS BY COUNTIES FORMS FORMS PER CENT COUNTY SENT RETURNED RETURNS Alameda 5 4 80 Butte 1 1 100 Calaveras 1 1 100 Colusa 1 1 100 Contra Costa 2 1 50 Fresno 2 2 100 Humbolt 1 1 100 Kern 1 1 100 Los Angeles 18 18 100 Marin 2 2 100 Merced 1 1 100 Monterey 2 1 50 Napa 1 1 100 Orange 3 3 100 Plumas 1 1 100 Riverside 4 3 75 San Bernardino 3 3 100 San Diego 2 2 100 San Joaquin 2 2 100 Sacramento 2 2 100 Shasta 1 1 100 Solano 2 2 100 Tulare 1 1 100 TOTALS 61 57 94 APPENDIX H SCHOOL DISTRICTS AND RESPONDENTS WHO COOPERATED IN THE GENERAL SURVEY, ARRANGED BY ENROLLMENT CLASSIFICATIONS LIST OF SCHOOL DISTRICTS AND RESPONDENTS COOPERATING IN THE GENERAL STUDY ARRANGED BY ENROLLMENT CLASSIFICATIONS DISTRICT RESPONDENT POSITION Group A (900-3,999): Albany Robert G. Dennis Assistant Superintendent Beaumont Everett V. Adams Superintendent Beverly Hills Kenneth L. Peters Assistant Superintendent Bullard Weston M. Alt Superintendent Calavaras Charles Knight Superintendent Camel Stuart Mitchell Superintendent Claremont Hugh M. Wilby Acting Superintendent Colusa George T. Egling Superintendent Coronada A. E. Schaefer Superintendent Dixon Floyd Salisbury Superintendent El Segundo Carol E0 Smith Director of Instruction Fall River Robert L. Dougherty Superintendent Folsom E. Edwin Mitchell Superintendent Hilmar Eugene R. McSweeney Superintendent Laguna Beach Fred L. Petersen Sup er in ten den t Lincoln Mrs. Mabel W. Barron Superintendent Lindsay Clayton Castle Superintendent Muroc Melvin J. Curtis Superintendent 370 DISTRICT RESPONDENT POSITION Group A (900-3,999)continued: Novato William Je Smith Superintendent Palm Springs Wallace R. Muelder Superintendent Palo Verde Lyle E. Siverson Assistant Superintendent of Instruction Paradise Loren A. Wann Superintendent Placentia J. Francis Addy Superintendent Plumas R. R. Lichty Superintendent San Marino Walter Dingus Superintendent South Pasadena Laurence Harper Superintendent Southern Humboldt Clarence Hall Assistant Superintendent St. Helena Melville 0. Johns Principal High School Temple City Clarice E. Manshardt Director of Education Trona Lawrence A. Wiemers Superintendent Vista Harold L. Woods Curriculum Coordinator Group B (4,000-6,999): Antioch-Live Oak Wayne Jordan Assistant Superintendent of Instruction Chino L. H. Dickey Superintendent Lynwood Laura A. Bechtel Assistant Superintendent of Instruction Orange James F. Gable Director Educational Services 371 DISTRICT RESPONDENT POSITION Group B (4,000-6,999) continued? Culver City Vincent Alexander Group C (7,000-9,999): Arcadia Fontana Paramount Henry S. Molino Denzill Weidel John Allan Smith Deputy Superintendent of Instruction Assistant Superintendent of Instruction Assistant Superintendent of Instruction Assistant Superintendent of Instruction Group D (10,000-12,999): Alameda Bellflower Inglewood Palo Alto San Leandro Santa Monica H. J. Eifert W. Norman Wampler Charles Gawthrop Jack Rand Alexander R. Smith Julius H. Stier Assistant Superintendent of Instruction Superintendent Assistant Superintendent Special Services Assistant Superintendent of Instruction Assistant Superintendent of Instruction Director of Research 372 DISTRICT RESPONDENT POSITION Group E (13,000-15*999): Berkeley Pomona Vallejo A. B. Campbell Aubrey H. Simons George P. Chaffey Assistant Superintendent Special Services Associate Superintendent of Instruction Deputy Superintendent Group F (16,000-18,999): Montebello Burbank Norman 0. Taliman Foster C. Merrill Assistant Superintendent of Instruction Assistant Superintendent of Instruction Group G (19,000-21,999): San Jose Earle P. Crandall Terrance Albert N. Posner Superintendent Assistant Superintendent of Instruction Group H (22,000-33,999): Fresno Robert A. Webber Glendale Mt. Diablo Sacramento Stockton Morris H. Winward John Moiso Arthur H. Polster William McClintock Director of Research Assistant Superintendent of Instruction Director of Personnel Assistant Superintendent Curriculum Consultant APPENDIX I THE ORGANIZATION OF SUPERVISORY SERVICES IN CALIFORNIA UNIFIED SCHOOL DISTRICTS OF VARIOUS SIZES 374 FIGURE 8 ORGANIZATION OF SUPERVISORY SERVICES IN A 33,953-PUPIL UNIFIED SCHOOL DISTRICT SUPERINTENDENT Assistant Superintendent (Elementary Education) ■ Elementary Principals (37) - General Supervisors (2) - Primary Supervisor - Curriculum Director -Director Physical Educa tion, Health (%) • Director, Music (%) -Director, Audiovisual (%) -Director, Guidance and Special Education (%) -Attendance Supervisor (2) Speech Therapists (5) Home Teachers (14) Teachers of Physically Handi capped (9) Teachers of Mentally Retarded (9) - Secondary Principals (9) - Attendance Supervisors (2) - Director, Physical Education and Health (%) Remedial (4) Nurses (20) - Director, Music (%) Instrumental Music Teachers (5) - Director, Business Education - Homemaking Consultant - Math and Science Consultant - English Consultant - Social Studies Consultant (%) - Director, Industrial Education - Director, Audiovisual (%) - Director, Guidance and Special Education (%) r : i i L _ - . 1 Assistant Director Assistant Superintendent of Superintendent (Secondary Research in Charge of Education) Business 375 FIGURE 9 ORGANIZATION OF SUPERVISORY SERVICES IN A 29,000-PUPIL UNIFIED SCHOOL DISTRICT and - General Supervisors - Supervisors Music Art Director Personnel Principals Director Secondary Education Director Elementary Education SUPERINTENDENT Assistant Superintendent (Business) Associate Superintendent (Instruction) • Curriculum Coordinator • Director of Research - Consultants Guidance Health, Physical Education Library, Audio-visual Homemaking Vocational Education Business Education Gifted Children Arithmetic • Pupil Personnel Coordinator Speech Therapists Home Instructors FIGURE 10 ORGANIZATION OF SUPERVISORY SERVICES IN A 24,349-PUPIL UNIFIED SCHOOL DISTRICT SUPERINTENDENT Assistant Superintendent (Instruction) Assistant Superintendent (Business) ■ Director of Personnel ■ Guidance Consultants (7) ■ Coordinator of Library Services School Librarians (14) ■ Coordinator of Work Education - Principals (34) - Teachers of Mentally Retarded (12) - Attendance and Child Welfare Supervisors (3) - Director of Special Services Speech Therapists (10) Teachers of Physically Handicapped (4) School Nurses (13) - Music Coordinator Instrumental Music Instructors (12) Vocal Music Teachers (7) Classroom music Consultant - Elementary Instructional Consultants (5) Secondary Instructional Consultants (6) FIGURE II ORGANIZATION OF SUPERVISORY SERVICES IN A 22,850-PUPIL UNIFIED SCHOOL DISTRICT SUPERINTENDENT Assistant Assistant Superintendent Superintendent (Instruction) (Business) Principals General Supervisor Primary Supervisor Art Supervisor (2) Audio-visual Supervisor Curriculum Consultants (2) Music Director Music Supervisors (2) Psychologist Elementary Coordinators (6) Attendance Counselors (2) Director of Physical Education Physical Education Teachers (3) Supervisor of Speech Correction Speech Therapists Director of Health Services School Nurses (13), Dentist, Physician Deputy Superintendent (Personnel and Special Services) Home Teachers Teachers of Mentally Retarded (16) Teachers of Physically Handicapped (8) ( 1%) Director Research 377 378 FIGURE 12 ORGANIZATION OF SUPERVISORY SERVICES IN A 16,711-PUPIL UNIFIED SCHOOL DISTRICT General Supervisor - Art Supervisor - Recreation Supervisor • Curriculum Consultant - Director of Research - Director of Secondary Education - Director of Elementary Education Speech Therapists - Music Supervisor Vocal Music Teachers Instrumental Music Teachers Director of Guidance Principals SUPERINTENDENT Special Services Coordinator Assistant Superintendent (Business) Assistant Superintendent (Instruction) Home Teachers Attendance Supervisor Psychometrist 379 FIGURE 13 ORGANIZATION OF SUPERVISORY SERVICES IN A 15,000-PUPIL UNIFIED SCHOOL DISTRICT Director of Health Services ■ General Supervisor Nurses (10) ■Art Supervisor Dental Hygienist ■ Remedial Reading Consultant Physician •Music Supervisor Home Instructors (6) Instrumental Music (4) Speech Therapists (4) - Director of Guidance Principals SUPERINTENDENT Assistant Administrator Assistant Superin tendent (Business) Assistant Supe rintendent (Instruction) Attendance Counselors (1%) School Social Workers (3) Psychologist (^) Psychometrist 380 FIGURE 14 ORGANIZATION OF SUPERVISORY SERVICES IN A 13,065-PUPIL UNIFIED SCHOOL DISTRICT - Audio-visual Supervisors ■ Speech Therapists - Curriculum Consultants - Home Teachers ■ Secondary Curriculum Coordinator ■ Teachers of Mentally Retarded - Art Consultant - Teachers of Physi cally Handicapped Music Consultant Instrumental Music Teachers Attendance Counselor • Psychologist - Elementary Curriculum Coordinator Assistant Elementary Coordinator Helping Teachers - Assistant Supervisor Child Welfare and Attendance • Supervisor of Health Principals SUPERINTENDENT Associate Superintendent (Instruction) Director of Special Services Services Nurses 381 FIGURE 15 ORGANIZATION OF SUPERVISORY SERVICES IN A 11,200-PUPIL UNIFIED SCHOOL DISTRICT and ■ Special Services Coordinator - Art Coordinator - Curriculum Assistant ■ Home Teachers - Director of Elementary Education -Teachers of Physically Handicapped - Coordinator of Audio-visual Libraries •Teacher-Assistants - Director of Secondary Education - Nurses - Librarians Principals Director Research Director Personnel SUPERINTENDENT Assistant Superintendent (Business) Assistant Superintendent (Instruction) Director of Trade and Industrial Arts - Director of Health Services - Coordinator of Speech Education Speech Therapists - Coordinator of Physical Education Physical Education Teachers - Director of Guidance Teachers of Mentally Retarded Teachers of Remedial Reading Psychologist - Coordinator of Music Vocal Music Teachers Instrumental Music Teachers 382 FIGURE 16 ORGANIZATION OF SUPERVISORY SERVICES IN A 10,918-PUPIL UNIFIED SCHOOL DISTRICT Director of Instruction General Supervisor Art Supervisor Coordinator of Instructional Materials Coordinator of Industrial Arts and Vocational Education Coordinator of Music Instrumental Music Teachers (6) - Director of Guidance and Special Services Speech Therapist Home Teachers Teachers of Physically Handicapped Supervisor of Child Welfare and Attendance School Nurses L Psychologist Principals (15) SUPERINTENDENT Assistant Superintendent (Business) Assistant Superintendent (Instruction) FIGURE 17 ORGANIZATION OF SUPERVISORY SERVICES IN A 10,900-PUPIL UNIFIED SCHOOL DISTRICT • Curriculum Consultant Art Coordinator - Attendance Supervisor -Instructional Materials Coordinator -Art Consultant - Nurses (6) -Physical Education Consultant -Guidance Coordinator, Guidance Consultant Physician (%) - Gifted Consultant Audio-visual Consultant ■ Speech Therapists (4) -Home Teachers (5) LRemedial Reading Teacher -Psychometrist -Music Coordinator Principals Director Business Director Special Services SUPERINTENDENT Director Elementary Education Assistant Superintendent (Instruction) 383 384 FIGURE 18 ORGANIZATION OF SUPERVISORY SERVICES IN A 6,600-PUPIL UNIFIED SCHOOL DISTRICT ■Remedial Reading Teachers • Secondary Curriculum Consultant •Elementary Teacher Consultant ■ Attendance Supervisor ■ Nurses -Instrumental Music Teachers ■Psychometrist L Physician ■ Speech Therapists -Home Teachers •Elementary Guidance Principal SUPERINTENDENT Assistant Superintendent (Business) Deputy Superintendent (Instruction) Deputy Superintendent (Special Services) Director 385 FIGURE 19 ORGANIZATION OF SUPERVISORY SERVICES IN A 3,909-PUPIL UNIFIED SCHOOL DISTRICT SUPERINTENDENT Assistant Superintendent (Instruction) (h) High School Principal (%) . Principals Nurses - General Supervisors - Primary Supervisor - Music Supervisor _ Art Supervisor - Physicians (2) - Vocal Music Teachers (2) - Instrumental Music Teachers (2) - Physical Education Teachers (6) . Speech Therapists (1) - Home Instructors (3) . Teachers for the Mentally Retarded (1) • Remedial Reading Teachers (2) Assistant Superintendent (Business) 386 FIGURE 20 ORGANIZATION OF SUPERVISORY SERVICES IN A 3,640-PUPIL UNIFIED SCHOOL DISTRICT - Curriculum Center Librarian _ Vocal Music Teacher _ Instrumental Music Teacher Home Teachers - Teachers of Mentally Handicapped - Teachers of Physically Handicapped - School Nurses - Psychologist - Physician L Elementary Librarian Principals Swimming Instructor SUPERINTENDENT Assistant Superintendent (Business) Director of Instruction

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Creator Molino, Henry Samuel (author)

Core Title Organizational Patterns For Supervisory Services In Selected California Unified School Districts

Contributor Digitized by ProQuest (provenance)

School School of Education

Degree Doctor of Education

Degree Program Education, administration

Publisher University of Southern California (original), University of Southern California. Libraries (digital)

Tag Education, administration,OAI-PMH Harvest

Place Name California (states), USA (countries)

Format dissertations (aat)

Language English

Advisor LaFranchi, Edward H. (committee chair), Cannon, Wendell E. (committee member), Carnes, Earl F. (committee member)

Permanent Link (DOI) https://doi.org/10.25549/usctheses-c18-58446

Unique identifier UC11357576

Identifier 6000563.pdf (filename),usctheses-c18-58446 (legacy record id)

Legacy Identifier 6000563.pdf

Dmrecord 58446

Document Type Dissertation

Format dissertations (aat)

Rights Molino, Henry Samuel

Type texts

Source University of Southern California (contributing entity), University of Southern California Dissertations and Theses (collection)

Access Conditions The author retains rights to his/her dissertation, thesis or other graduate work according to U.S. copyright law. Electronic access is being provided by the USC Libraries in agreement with the au...

Repository Name University of Southern California Digital Library

Repository Location USC Digital Library, University of Southern California, University Park Campus, Los Angeles, California 90089, USA

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University of Southern California Dissertations and Theses