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Content This dissertation has been microfilmed exactly as received 6 4 -3 1 0 8 PAUL, Dale Carl, 1925- SEATON, Robert Lee, 1929- LEGAL REQUIREMENTS AFFECTING ELEMENTARY AND SECONDARY CURRICULUM AND INSTRUCTION IN CALIFORNIA. Both authors received degrees at University of Southern California, Ed.D., 1963 Education, administration University Microfilms, Inc., Ann Arbor, Michigan ROBERT LEE SEATON All Rights Reserved 1966 LEG AL REQ UIREM ENTS AFFECTING E LE M E N T A R Y A N D SEC O N D A R Y C U R R IC U LU M A N D INSTRUCTION IN CALIFORNIA A D is s e r ta tio n P resented to the F acu lty o f the School o f Education The U n iv ersity o f Southern C a lifo rn ia In P a r tia l F u lfillm e n t o f the Requirements fo r the Degree Doctor o f Education by Dale Carl Paul and Robert Lee Seaton June 1963 This dissertation, written under the direction Committee and approved by all members of the Committee, has been presented to and accepted by the Faculty of the School of Education in partial fulfillment of the requirements for the degree of Doctor of Education. D ate....................JUKE,.....1 ^ 6 3 ....................................................... of the Chairman of the candidate’s Guidance Guidance uommtttec Dean TABLE O F C O N T EN TS Page LIST O F TABLES............................................................................... v i ILLUSTRATION................................................................................... v i i ACKNOWLEDGMENTS.................................................................... . . v i i i ~ Chapter I . T H E PROBLEM..................................... . ........................... 1 In tro d u ctio n The Problem Statem ent o f the problem D e lim ita tio n s o f the problem B a sic assum ptions D e fin itio n s o f Terms O rganization o f the Remainder o f the Study I I . REVIEW O F T H E LITERATURE.......................................... 13 In tro d u ctio n The Legal Foundations o f P ublic Education The fe d e r a l le v e l The s ta te le v e l C a lifo rn ia Legal C ontrols over Curriculum and In str u c tio n The fe d e r a l le v e l The s ta te le v e l C a lifo r n ia Curriculum L e g is la tio n and the Educator Chapter Summary I I I . HISTORY O F C UR R IC U LU M AN D INSTRUCTION LEGISLATION IN CALIFORNIA................................. 89 In tro d u ctio n L e g is la tio n from the Years 1850 to 1900 L e g is la tio n from the Years 1900 to 1930 L e g is la tio n from the Years 1930 to 1961 i i i Chapter IV. PR O C E D U R E FO R T H E INVESTIGATION....................... Introduction Procedure Design o f the study Development o f an in te r v ie w guide S e le c tio n o f a ju ry Jury ev a lu a tio n o f item s O rganization o f th e in te r v ie w guide B asis o f s e le c t io n o f d i s t r i c t s to be surveyed D is t r ic ts in terv iew ed Interview procedures Chapter Summary V. FINDINGS O F T H E SURVEY .............................................. Introduction Legal Requirements Which Have Caused Problems A ctual versus P o ssib le Number o f Problems Created by C urricular L e g is la tio n Problems Caused by S p e c ific L egal Requirements S p e c ific Code S e c tio n s That Caused Problems S ectio n s That Have Not Caused Problems The Views o f A dm inistrators Concerning Curriculum L e g is la tio n in General Chapter Summary V I. SU M M A R Y , S U M M A R Y O F FINDINGS, CONCLUSIONS, A N D R E C O M M E N D A T IO N S .............................................. Summary The problem The procedure Summary o f the Findings Conclusions Recommendations S uggestions fo r Further Study BIBLIOGRAPHY................................................................................... APPENDICES ....................................................................................... Page 159 182 288 302 318 iv Chapter Page Appendix A. Correspondence Regarding Sponsorship o f S t u d y ............................................................ 319 Appendix B. Correspondence w ith J u r o r s .................. 323 Appendix C. L e tte r o f T ra n sm itta l, and Correspond ence Regarding P a r tic ip a tio n in Study 326 Appendix D. Correspondence Regarding In terview s w ith R e s p o n d e n t s .......................................... 329 Appendix E. In terv iew G u id e .............................................. 334 Appendix F. L egal Requirements A ffe c tin g Secon dary and Elementary In str u c tio n and Curriculum in C a l i f o r n i a ....................... 344 Appendix G. D is tr ib u tio n o f Responses Regarding Problems That R esu lted from S p e c ific Legal R e q u ir e m e n t s ..................................... 363 v LIST O F TABLES Table Page 1. Legal Requirements That Have Caused Problems to School D is t r ic t s ....................... 185 2 . Number and Percentage o f P o ssib le Problems That Were A ctu a lly Encountered by School D i s t r i c t s .................................................................... 197 3. Rank Order L istin g o f Type and S ize o f D is t r ic t s , According to Number o f Prob lems A ctu a lly Encountered . ......................... 212 4 . Legal Requirements Chosen by Jury as P o ssib le Sources o f Problems to School D i s t r i c t s ..................................................................... 216 5 . Legal Requirements I d e n tifie d by Adminis tr a to r s as Having Caused Problems to the D is t r ic t s ................................................................ 217 6. Rank Order L is tin g o f Legal Requirem ents, According to Frequency w ith Which Each Was Reported to be a Problem to School D i s t r i c t s .................................................................... 267 7. Problems R esu ltin g from P rovision s o f Education Code and A dm in istrative Code, T it le 5 - - E d u c a t io n .............................................. 364 v i ILLUSTRATION Figure Page I . L e g is la tiv e S ectio n s Judged to be Most Important as They A ffe c t Curriculum and In stru ctio n . . . . . 166 v i i A C K N O W L E D G M E N T S The w r ite r s w ish to thank a l l th ose whose in te r e s t and coop eration have made t h is study p o s s ib le : Dr. D. Lloyd N elso n , Chairman o f the Committee on S tu d ies; Dr. Richard Clowes, P resid en t o f CASA; Dr. James Corson, E xecutive S ecreta ry o f CASA; Dr. Garford Gordon, R esearch E xecu tive o f CTA; the members o f the ju ry ; and the educators in terv iew ed . They e s p e c ia lly w ish to thank th e ir w iv e s, B etty Seaton and Marianne Paul, whose d evotion and u n fa ilin g in t e r e s t have made i t a l l w orthw hile. v i i i C H A PTER I T H E P R O B L E M In tro d u c tio n In C a lif o rn ia , education i s a s t a t e fu n c tio n . Because o f t h i s , there are numerous s ta te re g u la tio n s th a t a f f e c t curriculum and in s tr u c tio n . At each reg u la r s e s sio n o f the s ta te le g is la t u r e , more laws are added to an already lengthy Education Code. The h isto r y o f the Educa tio n Code shows th a t many reg u la tio n s have been added, but few withdrawn. In g en era l, once a su b ject has become in t e grated in to the s ta te requirem ents, i t con tin u es to remain a law o f the s ta te fo r a long time (1 :1 6 ). Moreover, as s t a te requirem ents in crea se in number, a trend appears to develop: as s ta te co n tro l over curriculum and in s tr u c tio n in c r e a se s, lo c a l co n tro l d ecrea ses. No d is t r ic t knowingly f a i l s to comply w ith s t a te r e g u la tio n s; n e v e r th e le s s , the v a st number o f laws d ea lin g w ith education make i t d i f f i c u lt to keep up w ith a l l le g a l requirem ents th a t p ertain to m a tte rs o f in s t r u c tio n and cu rricu lu m . The concern over in s t r u c tio n and curriculum has in c re a se d as the people o f America have r e a liz e d th a t only through a w e ll educated p u b lic can democracy su rv iv e . E ducation i s v i t a l to American democracy because a repub lic a n system o f government re q u ire s a c itiz e n r y th a t is h ig h ly l i t e r a t e , a c c u ra te ly inform ed, and tr a in e d in the process o f r a t i o n a l and c r i t i c a l th o u g h t. The p u b lic has been made aware o f some o f the supposed weaknesses o f p u b lic school curriculum and in s t r u c tio n by many groups and in d iv id u a ls during th e p ast few y e a rs . The r e s u l t o f such a g i t a t i o n has been a heightened i n t e r e s t g e n e ra lly throughout the n a tio n in issu e s a f f e c tin g in s tr u c tio n and cu rricu lu m in the p u b lic sc h o o ls. In 1958 th e schools came under even sh a rp e r a tta c k follow ing the R ussian space achievem ent. This le d the American people to se a rc h th e i r lo c a l e d u c a tio n a l programs to determ ine w hether t h e i r science programs were adequate to to d a y 's demands. R ussian e d u c a tio n a l programs were compared w ith those in t h i s co u n try , p rim a rily from the view point o f c u r r ic u la r and i n s t r u c t i o n a l emphases. In a d d itio n to the c r itic is m s o f th e e d u c a tio n a l programs being provided to American yo u th , o th e r fo rces cu rren tly o p era tiv e In s o c ie ty th a t a f f e c t the sc h o o ls o f the n a tio n have been causes o f great concern. These fo r c e s are w e ll id e n t if ie d in a p u b lic a tio n iss u e d by the R o c k e fe lle r B rothers Fund, The P ursuit o f E x c ellen ce— Education and the Future o f America. They are the ex p lo s iv e ra te o f te c h n o lo g ic a l changes and the in c r ea sin g com plexity o f s o c ia l o rg a n iz a tio n . The ta sk s th a t must be performed in an ever-more-demanding and in t r ic a t e s o c ie ty are c o n sta n tly changing in ch a ra cter; the r e s u lt has been a growing v a r ie ty o f sh ortages o f human reso u rces in f i e l d s req u irin g h ig h competence and e x te n siv e tr a in in g . One o f the problems in the te c h n o lo g ic a l changes i s the r i s e o f autom ation. Automation and th e trend toward s k i l l e d lab or demands, i t i s ob served , c o n sta n tly reduces th e number o f ro u tin e jobs and rep la ces them w ith more demanding ta sk s o f s u p e r v is io n , m aintenance, and reg u la t io n . The e f f e c t s o f th ese fo r c e s and concerns may be seen in the d e sir e o f many p aren ts fo r th e ir ch ild re n to e n r o ll in a more academic ty p e o f program in p rep aration fo r tr a in in g in an in s t it u t io n o f h igh er ed u cation . There i s a ls o a r e a liz a tio n by the American people th a t the sc h o o ls are r e sp o n sib le fo r the development o f w ell-in fo rm ed c i t i z e n s , fo r , i f the sc h o o ls f a i l , the id e a l o f self-governm ent is in danger o f c o lla p se as a r e s u l t of the i n a b i l i t y o f i t s e le c to r a te to grapple i n t e l l i g e n t l y w ith the complex problems th a t re q u ire p u b lic d e c isio n . Some r e s u l t s o f the impact o f th ese many fa c to rs a f f e c tin g the n a t io n 's s a fe ty and w elfare are r e f le c te d in the a c tio n o f the C a lifo rn ia le g is la tu r e in 1961, when a number o f fa r-re a c h in g enactm ents were made in th e area o f curriculum and in s tr u c tio n . The h is to r y o f the l e g i s la tiv e enactm ents a f f e c tin g curriculum and in s tr u c tio n from 1850 through 1961 are reviewed in th is stu d y . The im portance of the study to school a d m in is tra to rs in C a lifo rn ia has been recognized by the C a lifo rn ia A sso c iatio n o f School A d m in istra to rs, an o rg a n iz a tio n which has le n t i t s sponsorship to the in v e s tig a tio n . The Problem Statem ent of the Problem The purpose o f th is study was to determ ine which le g a l requirem ents a f f e c t curriculum and in s tr u c tio n in C a lifo rn ia secondary and elem entary sc h o o ls, and which requirem ents are causing problems to school d i s t r i c t s . More s p e c i f i c a l l y , answers were sought to the q u e stio n s: What le g a l requirem ents a f f e c t in str u c tio n and curriculum , as determ ined by the C a lifo rn ia Education Code? What le g a l requirem ents a f f e c t in str u c tio n and curriculum , as determined by the C a lifo rn ia A d m in istrative Code, T itle F iv e—Education? What le g a l requirem ents a f f e c t in str u c tio n and curriculum , as determ ined by the A ttorney Gen e r a l's ru lin g s? What le g a l requirem ents p erta in to in str u c tio n and curriculum as contained in the C o n stitu tio n o f C alifo rn ia ? What le g a l requirem ents o f in s tr u c tio n and curriculum have been determ ined by court d ecisio n s? What problems are created by the le g a l req u ire ments in in str u ctio n ? What problems are crea ted by the le g a l req u ire ments in curriculum? What changes do d is t r ic t s want in the regu la tio n s th a t a f f e c t curriculum? What changes do d i s t r i c t s want in the 6 r e g u la tio n s th a t a f f e c t in str u c tio n ? D elim ita tio n s o f the Problem This study was lim ite d to p u b lic sch o o l d i s t r i c t s in the s ta te o f C a lifo r n ia . While s e v e r a l sch o o l d is t r i c t s co n ta in ju n io r c o lle g e s , th e study o f the le g a l requirem ents a f fe c t in g the curriculum and in s tr u c tio n o f the ju n io r c o lle g e was not co n sid ered . Only requirem ents th a t a f f e c t grades k through 12 w ere in clu d ed . No attem pt was made to determ ine what d i s t r i c t s do to meet th e le g a l requirem ents th a t a f fe c t in s tr u c tio n and curriculum . And, sin c e th ere was no determ ination o f how requirem ents are b ein g m et, no statem ents were made concerning what the b e st p r a c tic e i s in m eeting requ irem en ts. No attem pt was made to determ ine how w e ll informed the a d m in istra to rs and fa c u lty members o f sch o o l d i s t r i c t s were concerning the le g a l requirem ents a f fe c t in g in s tr u c tio n and curriculum in C a lifo rn ia d i s t r i c t s . The study was concerned on ly w ith mandatory and p r o h ib itiv e l e g i s la t io n , sin ce perm issive le g i s l a t i o n does not pose the same type o f problem to d i s t r i c t s . The study was not concerned w ith s p e c ia l ed u cation programs fo r a ty p ic a l stu d en ts, but r a th e r , w ith the o v e r -a ll program s u ita b le fo r the average classroom stu d en t. B asic Assumptions In th e development o f the stu d y , c e r ta in b a sic assum ptions concerning the d u tie s and a t tit u d e s o f sch o o l a d m in istra to rs were made. They were as fo llo w s: 1. I t i s the r e s p o n s ib ility o f th e a d m in istra tio n o f the sc h o o l d i s t r i c t s in C a lifo r n ia to see th a t a l l le g a l requirem ents a f f e c t in g curriculum and in s tr u c tio n are f u l f i l l e d . 2. C a lifo r n ia a d m in istra to rs are concerned over th e v a s t number o f r e g u la tio n s th a t a f f e c t curriculum and in s tr u c tio n , as con tain ed in the 1961 Education Code, and in T it le Five o f the A d m in istrative Code. 3. A dm in istrators are cogn izan t o f the A ttorney G eneral's r u lin g s and o f the C a lifo r n ia court ca ses th a t have a b earin g on curriculum and in s tr u c tio n . D e fin itio n s o f Terms The fo llo w in g terms are d efin ed as th ey are used in t h is stu d y . In str u c tio n . The term in s tr u c tio n i s used here synonymously w ith te a c h in g , "the a c t o f in s tr u c tin g in an ed u ca tio n a l in s t it u t io n " (6 :5 5 2 ). Curriculum. Curriculum here r e fe r s to the g en era l o v e r -a ll plan o f th e con ten t or s p e c if i c m a te ria ls o f in s tr u c tio n th a t the sch o o l o ffe r s th e stu d en t by way o f q u a lify in g him fo r graduation or c e r t i f ic a t i o n , or fo r entrance in to a p r o fe s s io n a l or v o c a tio n a l f i e l d (6 :1 4 9 ). P u b lic sc h o o l system . A p u b lic sch o o l system in clu d es a l l k ind ergarten s c h o o ls , elem entary s c h o o ls , secondary s c h o o ls , te c h n ic a l s c h o o ls , and s t a t e c o lle g e s , e s ta b lis h e d in accordance w ith law; in a d d itio n , i t in clu d es the sc h o o l d i s t r i c t s and o th er a g en cies a u th orized to m aintain them. No sc h o o l or c o lle g e or any o th er part o f the P u b lic School System s h a ll b e , d ir e c t ly or in d ir e c t ly , tr a n sfe r r e d from the P u b lic School System or p laced under th e j u r is d ic t io n o f any a u th o rity o th er than one in clu d ed w ith in th e P u b lic School System (9 2 ). P o l i t i c a l Code, The P o l i t i c a l Code is the code developed in 1872 fo r the s t a t e of C a lifo rn ia . The sec tio n s th a t apply to education a re found in C hapter I I I o f the P o l i t i c a l Code. School Code. The School Code is a document th a t provides fo r the e sta b lish m e n t, government, maintenance and o p e ra tio n o f the p u b lic school system o f the s t a t e of C a lif o rn ia ; i t was approved by the governor on March 28, 1929, and became e f f e c tiv e on August 14, 1929. The 1929 e d itio n o f th e School Code c o n tain s e x tra c ts from the P o l i t i c a l Code, the C iv il Code, the Penal Code, and the General Laws. I t a lso co n tain s the ru le s and re g u la tio n s o f the S ta te Board of E ducation. Education Code. By le g a l enactment an Education Code was e s ta b lis h e d fo r C a lifo rn ia to c o n so lid a te and re v is e the law r e l a t i n g to the e sta b lish m e n t, m aintenance, government, and o p e ra tio n o f sc h o o ls, l i b r a r i e s , and i n s t i t u t i o n s o f le a rn in g , a r t s and sc ie n c e s, and to re p e a l c e r ta in a c ts and p a rts o f a c ts s p e c if ie d h e re in . T itl e F iv e, C a lifo rn ia A d m in istrativ e Code. In th is s e c tio n o f th e C a lifo rn ia A d m in istrativ e Code are 10 con tain ed the r u le s and r e g u la tio n s a f f e c t in g the S ta te Board o f E ducation, su p erin ten d en t o f p u b lic in s tr u c tio n , s t a te d ir e c to r o f ed u ca tio n , board o f governors o f the C a lifo r n ia Maritime Academy, Bureau o f V ocation al R eh a b ili t a t io n , T eachers' R etirem ent Board, and S ta te S ch olarsh ip Commission. O rganization o f the Remainder o f the Study The study was organ ized in the fo llo w in g manner. Chapter I was devoted to a statem ent o f the problem , a d e lim ita tio n o f th e in v e s t ig a t io n , b a sic assu m p tion s, and d e f in itio n s o f the terms to be u sed . Chapter I I co n ta in s a review o f r e la te d s t u d ie s , and a r€sum£ o f lit e r a tu r e concerning c u r r ic u la r l e g i s l a t io n . In order to understand the problem now fa cin g the ad m in istra to rs o f sch o o l d i s t r i c t s in C a lifo rn ia in regard to the le g a l requirem ents a f f e c t in g in s tr u c tio n and cur ricu lum , i t i s n ecessa ry to examine in d e t a il the h i s t o r i c a l development o f t h is type o f le g is la t io n ; t h is i s done in Chapter I I I . The ch ap ter s t a r t s w ith the C a lifo rn ia s ta tu te s o f 1850 and co n tin u es through the a c ts o f th e , 1961 le g is la t u r e . A ttorney G eneral r u lin g s th a t have 11 p erta in ed to curriculum and in str u c tio n from 1900 to the p resen t year are rep o rted . They are in clu d ed b ecau se, to an e x te n t, they rep resen t in te r p r e ta tio n o f th e Educa tio n Code. The d e c isio n s o f the cou rts th a t p erta in to in s tr u c tio n and curriculum are a ls o review ed. Chapter IV rep o rts the procedure e s ta b lis h e d for the in v e s tig a tio n o f the problems th a t c u r r ic u la r l e g i s l a tio n has crea ted fo r C a lifo rn ia sch o o l d i s t r i c t s . The procedure in clu d es the s e le c t io n o f a jury and the part p layed by the ju ry in the v a lid a tio n o f a q u e stio n n a ire . I t a ls o ex p la in s how the in form ation thus gathered was used in the development o f an in terv iew g u id e. The s e le c t io n o f the sch o o l d i s t r i c t s to be in te rv ie w ed , and the procedures to be used during the in terv iew s are a ls o rep o rted . In Chapter V are rep orted th e fin d in g s o f the in v e s t ig a t io n . These fin d in g s p erta in to the requirem ents th a t have posed problems to a d m in istra to rs o f s e le c te d sc h o o l d i s t r i c t s , reasons why the problems have e x is t e d , and th e s o lu tio n s su ggested by the p a r tic ip a tin g adm inis tr a to r s fo r c o r r e c tin g the problem s. In Chapter VI are p resen ted the co n clu sio n s and 12 recommendations d erived from the fin d in g s o f the i n v e s t i g a tio n , the lit e r a t u r e , and the h is t o r ic a l development as shown in the s t a t u t e s , r u lin g s o f the a tto rn ey g e n e r a l, and cou rt d e c is io n s . A lso in clu d ed i s a summary o f the study and i t s major fin d in g s . C H A PT E R II REVIEW O F T H E LITERATURE In trodu ction From the very beginnings o f c i v iliz a t i o n there has been accum ulating a v a st body o f r u le s , regu la t io n s , or laws which have as th e ir purpose the r e g u la tio n o f human conduct. (5:4) One o f the primary fo rces which led to the e s t a b lis h ment o f the U nited S ta te s as a n a tio n was the b e l i e f th a t the d ig n ity o f man required a c itiz e n r y whose r ig h ts were not su b ject to the whims or ca p rice o f r u le r s , but were safeguarded by equal j u s t ic e under the law. Both the D ecla ra tio n o f R ights o f 1774 and the D eclaration o f Independence o f 1776 exp ressed t h is b e l i e f . The D eclara tio n o f R ights expressed i t by sa y in g , . . . The e x e r c ise o f le g i s l a t iv e power in se v e r a l c o lo n ie s , by a co u n cil appointed during the p leasu re o f the Crown, i s u n c o n s titu tio n a l, dangerous, and d e str u c tiv e to the freedom o f American le g is la t io n . (142) The fea r o f government by men rath er than by ru le o f law was s ta te d in the D eclaration o f Independence in 13 14 which the a c tio n s o f George I I I were ch allen ged : He has re fu se d to pass o th er laws fo r the accommodation o f la rg e d i s t r i c t s o f p eo p le, u n less th o se people would r e lin q u is h the r ig h t o f repre s e n ta tio n in th e le g is la t u r e — a r ig h t in estim ab le to them, and form idable to ty ra n ts o n ly . (1 4 1 ). Hence, from i t s in c e p tio n , t h is country has con sid ered i t s e l f a n a tio n governed by law ra th er than by men. As Gauerke has s t a te d , "Ours i s a government o f law s— laws to p r o te c t c it iz e n s . . . and to guarantee th e ir freedom w ith in th o se laws" ( 5 : 5 ) . In o ld er s o c i e t i e s , tr a d itio n may o fte n have the fo rce o f law in men's d ea lin g s w ith one an oth er. In an in fa n t s o c ie t y , such as in the e a r ly days o f the U nited S t a t e s , not on ly were such tr a d itio n s g e n e r a lly a b sen t, but the p o l i t i c a l p h ilosoph y i t s e l f was new and u n trie d . Hence i t was not su r p r isin g t h a t , in a d d itio n to those which p ro tected the in d iv id u a l c i t i z e n ' s r ig h t s , laws were w r itte n in to the c o n s titu tio n s and s ta tu te s o f the n a tio n and o f i t s s t a t e s w hich r e g u la te d the d ea lin g s o f c it iz e n s w ith one another or w ith th e ir government. In the fle d g lin g n a tio n , w r itte n law was looked to as the answer to the q u e stio n , "What w i l l make t h is new s o c ie ty operate p roperly?" The answer to t h is q u e stio n was given in part as 15 fo llo w s: The need fo r law i s th a t o f h elp in g to crea te a s o c ie ty th a t i s organized s u f f ic ie n t ly along accep ted r u le s so th a t the needs o f the v a st m ajority o f i t s members w i l l be b e st serv ed . (5:5) The U nited S ta te s i s now alm ost two hundred years o ld , and i t might be supposed th a t tr a d itio n could take th e p lace o f w r itte n law , a t le a s t in p a rt. However, the growth in s i z e , p o p u la tio n , and w ealth through the y ea r s, as w e ll as the in cr ea sin g com plexity o f American l i f e , have r e s u lte d in the cr e a tio n o f more and more law s, not in fewer law s. I t i s g en er a lly b e lie v e d th a t, ,fI f laws and codes were not ca r rie d by w r itte n word, they would be d is to r te d so r a p id ly , and to such a d egree, th a t the a d m in istra tio n o f j u s t ic e in a c i v i l i z e d s o c ie ty would be im p o ssib le'1 (5 :6 ). The laws o f the land are intended to rep resen t the common b e li e f s and a sp ir a tio n s o f the c itiz e n r y . Or, as Gauerke has sta te d : "Law has been d efin ed as a body o f r u le s fo r human conduct p rescrib ed and enforced by the r e p r e se n ta tiv e s o f organized s o c ie ty " (5 :6 ). T herefore, i t i s im perative th a t any segment o f the p opu lation charged w ith p a r tic u la r r e s p o n s ib ility in any asp ect o f n a tio n a l l i f e be com p letely informed about th e laws a f fe c t in g i t . 16 Educators in the U nited S ta te s bear such a r e s p o n s ib ility in the f i e l d o f ed u ca tio n , an a sp ec t o f n a tio n a l l i f e which becomes more im portant w ith each p a ssin g y ea r . The im portance to an educator o f a thorough knowledge o f the law a f fe c t in g ed u cation has been emphasized: Except in extraord in ary c a se s . . . Americans have u su a lly h eld th a t th e c i t i z e n has a m oral, as w e ll as a le g a l, o b lig a tio n to obey the le g a l commands o f duly c o n s titu te d governm ental a u th o r it ie s . The o b lig a tio n to obey in such ca ses i s b ased , n ot on any assum ption th a t th e a c t s o f government are n e c e s s a r ily r ig h t and j u s t , but on the grave moral consequences in h eren t in w idespread d isreg a rd o f law. (17:530) The present review o f lit e r a t u r e d ea lin g w ith sch o o l law i s presented in an e f f o r t to provide sc h o o l a d m in istra t o r s — those who bear the p a r tic u la r r e s p o n s ib ility noted above—w ith a frame o f re fe r e n c e to enhance t h e ir under stan d in g o f the r e s u lts o f t h is stu d y. The f i r s t major s e c tio n o f the chapter review s c e r ta in laws a f f e c t in g edu c a tio n in gen eral a t fe d e r a l, s t a t e , and lo c a l l e v e l s , emphasis b ein g p laced on C a lifo r n ia law s. The remainder o f the chapter co n ta in s a d is c u s s io n o f laws th a t p erta in to the su b jec t o f t h is stu d y— curriculum law—again w ith emphasis on C a lifo rn ia law s. 17 The Legal Foundations o f P ub lic Education Im p lic it in th e r e s p o n s ib ilit ie s o f educators in th e enforcem ent o f sch o o l law i s a duty to be as inform ed as p o s s ib le concerning le g a l r e g u la tio n s a f f e c t in g the s c h o o ls . The U nited S ta te s O ffice o f Education o f the Department o f H ealth , E ducation, and W elfare, in a rep ort dated March 1961, d eclared th a t the growing volume o f le g is la t io n , cou rt d e c is io n s , and a d m in istra tiv e r u le s and r e g u la tio n s a f f e c t in g ed u cation was a m atter o f concern to sc h o o l a d m in istra to rs everywhere because o f the p o te n tia l impact o f such laws on the ed u ca tio n a l programs o f sch o o ls (2 8 ). As th e body o f sc h o o l law has grown, so has the p r o fe s s io n 's in t e r e s t in such law. The Tenth Yearbook o f School Law fo r 1942 rep orted th a t between 1918 and 1942, a t o t a l o f 207 d o cto ra l d is s e r ta tio n s appeared th a t d e a lt s p e c if i c a ll y w ith sch o o l law. S ince th a t tim e, the propor tio n o f d o c to r a l s tu d ie s d e a lin g w ith sch o o l law has grown as the com p lexity o f sch o o l law has grown (1 7 0 ). Gauerke has d escrib ed the p r o fe s s io n 's in t e r e s t in sch o o l law as fo llo w s : . . . A v a s t number o f laws have been accum ulated which p e r ta in to sc h o o ls and to sc h o o l p ersonn el and which govern th e r e la tio n s h ip s w ith such per so n n el among them selves and w ith o th er p erson s. 18 School law in clu d es th a t body o f le g a l r u le s which r e la t e s to th e conduct o f the ed u ca tio n a l e n te r p r is e . When sc h o o l p erson n el have some knowledge o f the fundamental laws th a t govern th e conduct o f educa t io n , they can work w ith g rea ter purpose and s e c u r ity . (5 :7 ) The F ederal L evel The in tr o d u ctio n to the p resen t chapter d isc u sse d the s o c ia l background o f the form ation o f organ ic law in the U nited S ta t e s . A tten tio n now turns to the e f f e c t o f t h is law on ed u cation in the U nited S ta te s . I t has been s a id th a t one o f A m erica's unique c o n tr ib u tio n s to the p o l i t i c a l id e a l o f " eq u a lity b efo re the law" was the ex te n sio n o f equal op portu nity to each in d iv id u a l to make the most o f h is ta le n ts through ed u ca tio n . This id e a l was exp ressed by George Washington when he r e fe r r e d to knowl edge as th e " su rest b a s is o f h a p p in ess," and by J e ffe r so n who s ta te d t h a t , among the aims o f p u b lic in s tr u c tio n , are "public p r o sp e r ity and in d iv id u a l happiness" (5 :2 7 ). The founders o f the American system o f government did n ot ignore th e valu e o f ed u cation to the in d iv id u a l h im s e lf. They were fa m ilia r w ith Anglo-Saxon p o l i t i c a l developm ent, and e s p e c ia lly w ith the growth o f the id ea o f e q u a lity o f every person b efo re the E n g lish law. This con cep t o f the worth and d ig n ity o f the human b ein g had been 19 a lo n g -e sta b lish e d tr a d itio n w ith the E n glish p eop le. T heir " P e titio n o f R ights" a sse r te d the in v io la b ilit y o f the r ig h ts o f the most humble su b je c t. I t was th ese same r ig h ts th a t were d eclared in the D eclaration o f Independ ence to be in a lie n a b le (5 :2 7 ). The F ederal C o n stitu tio n . Although h isto r y has shown th a t th e founding fa th ers o f the U nited S ta te s recog n ize d the importance o f education to the in d iv id u a l, they did not make p ro v isio n fo r an ed u cation al system as such in th e b a sic law o f the lan d , the C o n stitu tio n . The Tenth Amendment to the C o n stitu tio n s ta te s : The powers not d eleg a ted to the U nited S ta te s by the C o n stitu tio n , nor p roh ib ited by i t to the s t a t e s , are reserved to the s ta te s r e s p e c tiv e ly , or to the p eo p le. (140) This amendment has g en era lly been h eld to mean th a t educa t io n , sin c e i t was n ot d eleg a ted to the U nited S ta te s by the C o n stitu tio n , nor p ro h ib ited by i t to the s t a t e s , became a fu n ctio n reserved to the s t a t e s . There have been many court c a ses which have r e ite r a te d th e general h olding o f Commonwealth v . Hartmann which sta te d : Congress can pass no laws but th o se which the C o n stitu tio n a u th o rizes e ith e r e x p re ssly or by c le a r im p lica tio n ; w h ile the Assembly has j u r is d ic tio n o f a l l su b jec ts on which i t s le g is la t io n 20 i s n ot p r o h ib ite d . The powers not granted to the government o f th e Union are w ith h eld ; but the s t a t e r e ta in s every a ttr ib u te o f so v e reig n ty which i s n ot taken away. (33) Many w r ite r s on sch o o l law have made the same p o in t. For exam ple, Schroeder has sa id : As the F ederal C o n stitu tio n makes no mention o f ed u ca tio n , t h is m atter i s l e f t to the j u r is d ic t io n o f th e s t a t e s , fo r a l l powers not s p e c if i c a ll y d e le g a ted to the n a tio n a l government remain w ith th e p eo p le. (16:22) In t h is con n ection Remmlein s t a t e s s u c c in c tly : The 10th Amendment o f the C o n stitu tio n reserv es to th e s t a t e s a l l m atters not d eleg a ted to the fe d e r a l government. Education i s n ot m entioned in th e A r t ic le s o f the C o n stitu tio n , and s o , under the 10th Amendment, i s a reserv ed power to the s t a t e s . (1 3 :x ix ) Thus i t i s seen th a t ed u ca tio n , not b ein g m entioned in th e U nited S ta te s C o n s titu tio n , becomes a fu n ctio n reserv ed to the s t a t e s . I t must not be thou ght, however, th a t education i s o f no in t e r e s t w hatever to the fe d e r a l government. Bolm eier makes t h is very c le a r : A lthough the B i l l o f R igh ts o f 1791 may not have been adopted o r ig in a lly fo r the purpose o f r e g u la tin g ed u ca tio n a l m a tters, s e v e r a l o f the amendments now have a b earin g on ed u ca tio n a l p o lic y - - such as th e guarantee o f r e lig io u s freedom in the F ir s t Amendment and o f due process o f law in the F if th . Moreover, the Fourteenth Amendment r a t if ie d in 1868, fo r the purpose o f p r o te c tin g th e r ig h ts o f in d iv id u a ls i s freq u en tly in v o lv ed in is s u e s 21 o f sch o o l law. (171:186) F ederal in t e r e s t in ed u cation has been exp ressed in two major ways: (1) in s p e c if ic ed u ca tio n a l programs d esign ed to p r o te c t the w elfa re o f the n a tio n , and (2) in l i t i g a t i o n in v o lv in g th e c i v i l r ig h ts o f American c i t iz e n s . In summary, the C o n stitu tio n i t s e l f , and the in te r p r e ta tio n s o f i t , p o in t to th e le g a l maxim th a t, even though ed u cation i s a fe d e r a l in t e r e s t , i t i s not a fe d e r a l fu n c tio n . O n th e co n tra ry , i t i s a fu n ctio n o f the s t a t e . One m ust, th e r e fo r e , look to the law o f the s t a t e s fo r s p e c if ic s o f ed u ca tio n a l law as they a f f e c t the d ay-to-d ay happenings in the classroom s o f America. The S ta te L evel No m ention o f ed u cation i s found in the U nited S ta te s C o n stitu tio n ; y e t ed u cation was o f concern to the people o f America long b efo re the C o n stitu tio n was adopted. From the tim e o f th e f i r s t s e t t li n g o f th e c o lo n ie s , the American people made i t c le a r th a t ed u cation was o f importance in the l i f e o f the new s o c ie t y . Gauerke n o te s: The f i r s t a c tio n to provide p u b lic ed u cation in America was brought about by the Puritan in f l u en ce. In 1642 the Commonwealth o f M assachusetts passed an e d ic t which made i t mandatory th a t a l l 22 ch ild re n be taught to read. Five years la t e r the le g is la t u r e o f the colony passed a law req u irin g : (1) th a t every town having f i f t y householders should a t once appoint a teach er o f reading and w r itin g . . . (5 :2 4 ). Other c o lo n ia l le g is la t u r e s follow ed the lead o f Massa c h u se tts and i t may be th a t the fa c t th a t they were alread y p rovid in g fo r ed u cation on what was to become the s t a te le v e l was one o f the reasons why p ro v isio n s fo r ed u cation were not found in the U nited S ta te s C o n stitu tio n . Before a ccep tin g the p oin t o f view th a t education in the U nited S ta te s i s a s t a te fu n c tio n , i t i s im portant to make a d is t in c t io n between the s ta te and the govern ment o f the s t a t e . This d is t in c t io n perm eates a l l o f the le g a l theory regarding the so v e reig n ty o f the American p eo p le. In the court c a s e , Poindexter v . Greenhow, d ecided in 1884, the court ex p la in ed t h is d is t in c t io n in the fo llo w in g words: In th e d isc u ssio n o f such q u e stio n s, the d is t in c tio n between the government o f a s t a te and the S ta te i t s e l f , i s im portant, and should be observed. In common speech and common apprehension they are u su a lly regarded as id e n tic a l; and as o r d in a r ily the a c ts o f th e government are the a c ts o f the S ta te , because w ith in the lim it s o f i t s d e le g a tio n o f power, the government o f the s t a t e i s g en er a lly confounded w ith the S ta te i t s e l f , and o fte n the former i s meant when th e l a t t e r i s m entioned. The S ta te i t s e l f i s an id e a l p erson, in ta n g ib le , i n v i s i b l e , immutable. The government i s an a g en t, 23 and, w ith in the sphere o f the agency, a p e r fe c t r e p r e se n ta tiv e ; but o u tsid e o f th a t, i t i s a law le s s u su rp a tio n . The c o n s titu tio n o f th e s t a te i s the lim it o f th e a u th o r ity o f i t s governm ent, and both government and S ta te are su b je c t to the supremacy o f the C o n stitu tio n o f the U nited S ta te s and o f the laws made in pursuance th e r e o f. (44) S ta te c o n s t it u t io n s . The com bination o f s ile n c e on the part o f the U nited S ta te s C o n stitu tio n concerning ed u cation and the alread y e s ta b lis h e d in t e r e s t o f the c o lo n ie s and c o lo n ia l le g is la t u r e s in ed u cation made i t incumbent upon the newly crea ted s t a te s to in clu d e in th e ir organ ic law (th e ir c o n s titu tio n s ) some p ro v isio n fo r ed u ca tio n . The idea th a t an educated c itiz e n r y was n ecessa ry fo r the su ccess o f the new p o l i t i c a l p hilosophy as exp ressed in the U nited S ta te s C o n stitu tio n may be found in the c o n s titu tio n s o f a l l o f the f i f t y s t a t e s . The b a sic reasons fo r s t a te c o n s titu tio n a l p ro v isio n s fo r ed u cation have been exp lain ed by many w r ite r s . Garber, fo r exam ple, d ec la r es: In the e a r ly [s ta te ] c o n s titu tio n a l co n v en tio n s, i t was r e c a lle d th a t America was experim enting w ith a new id ea in government. A government had been s e t up th a t gave to the people more e x te n siv e r ig h ts and p r iv ile g e s w ith t h e ir r e s u ltin g d u tie s and o b lig a tio n s , than any government had ever given them b e fo r e . I t was re p e a te d ly d ecla red th a t the s a fe ty o f the s t a te i s dependent upon the use the people make o f th ese r ig h ts and p r iv ile g e s and 24 upon the manner in which they perform t h e ir d u tie s and o b lig a tio n s . (4 :4 ) He c o n tin u e s: The co n stitu tio n -m a k ers were in te r e s te d in the p reserv a tio n and s a fe ty o f th e s t a t e . This was o f utm ost concern. They were w illin g to go to alm ost any len g th s to secu re i t . Education by the s t a te was s e iz e d upon as the instrum ent th a t s e cures and guarantees th e s t a t e ' s con tinu ed e x i s t en ce. E ducation, i t was f e l t , does t h is and in a d d itio n goes one ste p fu rth er and p rovid es fo r p o l i t i c a l p rogress and developm ent. (4 :7 ) I t i s c le a r th a t th e s t a t e ' s in t e r e s t in ed u cation was p rim arily a concern fo r the p r eserv a tio n o f the s t a t e . A lthough i t may be obvious th a t th e in d iv id u a l r e c e iv e s b e n e fits from the ed u cation provided by th e s t a t e , i t i s as tru e today as i t was when the s t a t e c o n s titu tio n s were form ulated, th a t the primary purposes o f s t a t e p r o v isio n s fo r p u b lic ed u cation are th e s a f e t y , p r e se r v a tio n , and w e ll-b e in g o f the s t a t e i t s e l f . I t has been sa id : The p u b lic sch o o l system was n ot e s ta b lis h e d m erely fo r the sake o f the c h ild who would be the d ir e c t b e n e fic ia r y o f i t s s e r v ic e s . . . . I t was brought in to b ein g to promote the g en era l w e lfa r e . (16:23) The s t a t e , i f i t i s to p reserv e i t s e l f and to pro v id e fo r the g en era l w elfa re through ed u ca tio n , must p o sse ss the a u th o rity to req u ire com pliance w ith i t s mandates concerning ed u ca tio n . The b a s is o f such power, 25 says Garber, l i e s in the fa c t th a t the s ta te p o ssesses p o lic e power. Here, the use o f the term " p o lice power" means the power to govern and i t belongs to every sover eig n as i t i s an a sp ect o f so v ereig n ty (1 7 5 ). Schroeder s t a t e s : The s ta te must m aintain supreme co n tr o l o f the p u b lic sc h o o ls , otherw ise there w i l l always be the danger th a t the s ta te purpose in e s ta b lis h in g them may be d efea ted . (13:33) This concern o f the s ta te s w ith education has been sum m arized in the court c a s e , W illiam s v . School D is t r ic t No. 6 in Newfane (Vermont) in 1860 as fo llo w s: Without fu rth er referen ce to the alm ost number le s s a c ts o f the le g is la t u r e , e x h ib itin g th e most a c tiv e w atch fu ln ess and fo s te r in g c a r e, fo r the cause o f popular ed u cation , enough has alread y been sta te d to show th a t the whole su b ject o f the m aintenance and support o f common sch o o ls has ever been regarded in t h is s ta te as one not only o f p u b lic u s e fu ln e s s , but o f p u b lic n e c e s s it y , and one which the s t a te in i t s so v ereig n ch aracter was bound to s u s ta in . (50) Each s ta te has expressed i t s in te r e s t in and power over ed u cation , and each has w r itte n in to i t s con s t it u t io n some p ro v isio n s d ea lin g w ith t h is m atter. Remmlein n o te s: W ithin the boundaries o f the fe d e r a l c o n s titu t io n , sch o o l law has been developed by s t a t e con s t it u t io n a l and sta tu to r y p r o v isio n s. Every s ta te c o n s titu tio n co n ta in s some m ention, a t l e a s t , o f p u b lic ed u cation . Some o f the newer s ta te c o n s titu - 26 tio n s co n ta in many d e t a ils concerning the p u b lic s c h o o ls , w h ile some o f the o ld e r s t a t e c o n s titu tio n s are more g en era l in t h e ir r e fe r e n c e s . Almost a l l s t a te c o n s titu tio n s co n ta in some p ro v isio n s regard in g the fin a n c ia l support o f the sc h o o ls; tw o -th ird s o f them r e fe r to the use o f p u b lic funds in connec tio n w ith the s c h o o ls , sch o o l la n d s, h igher educa t io n , and the o f f ic e s o f th e c h ie f s t a te sch o o l o f f ic e r ; h a lf o f them in clu d e p ro v isio n s fo r lo c a l and county o rg a n iz a tio n and a d m in istr a tio n , in clu d in g lo c a l fin a n c ia l support; sc h o o l age lim its are e s ta b lis h e d and the s t a t e board o f ed u cation i s crea ted by s t a t e c o n s titu tio n a l p r o v isio n s in alm ost h a lf o f the s t a t e s . (1 3 :x ix ) in 1931, Lide made a study o f th e c o n s titu tio n a l b a s is o f p u b lic sch o o l ed u cation fo r the U nited S ta te s O ffice o f E ducation. He stu d ie d the c o n s titu tio n s o f a l l o f the fo r ty -e ig h t s t a t e s then in e x is te n c e , and found, as did Remmlein, th a t th ere were many d iffe r e n c e s among the s t a te s as fa r as the number and s p e c i f i c i t y o f t h e ir c o n s titu tio n a l p ro v isio n s fo r ed u cation were concerned. His a n a ly s is made i t c le a r th a t the more r e c e n tly a s t a te was adm itted to the union the more lik e ly i t was to have a la r g er number o f c o n s t it u t io n a l p ro v isio n s d ea lin g w ith ed u ca tio n . For exam ple, th e c o n s titu tio n o f the s t a te s th a t were adm itted to the union p rio r to 1800 had an average o f le s s than one p ro v isio n ( i . e . , .6 ) th a t d e a lt w ith ed u ca tio n , w h ile th o se adm itted between 1900 and 1931 averaged 17.7 such p r o v is io n s . Like a ls o noted th a t 27 the s t a t e s o f th e West had many more p r o v isio n s than d id th o se in oth er areas o f th e n a tio n . Lide summarized h is fin d in g s and made the fo llo w in g recommendations: A co n sid er a tio n o f the data r e v e a ls a lack o f s e t t le d p o lic y on th e part o f the v a rio u s s ta te s as to the degree o f d e t a il in which o th e r types o f p ro v isio n s should be w r itte n in to th e C o n stitu tio n and how much l e f t to th e law—en a ctin g b od ies more s e n s it iv e to change. The lo g ic a l gu id in g p r in c ip le would seem to be th a t s in c e the c o n s titu tio n a l p r o v isio n s are le s s su b jec t to change, o n ly th ose pronouncements which rep resen t a s e t t le d p o lic y on the part o f the s t a t e , and which changing co n d itio n s w i l l not r e a d ily a f f e c t , sh ould be w r itte n in to th e b a sic law. (25:10) In t h is co n n ectio n , Hamilton and Mort rep orted : The c o n s t it u t io n a l p ro v isio n s r e q u irin g the le g is la t u r e s to provide fo r th e esta b lish m en t and m aintenance o f a system o f sc h o o ls are couched in very broad language in order to leave th e l e g i s l a tu res fr e e to modify the s t a t e system s as changing c o n d itio n s in the s t a t e s render n ecessa ry or d e s ir a b le . (9 :1 7 ) I f i t i s tr u e , as Matzen s t a t e s , th a t " d e ta ile d c o n s t it u t io n a l p ro v isio n s in h ib it ed u ca tio n a l p rogress" (1 1 ), i t may be concluded th a t th e s ta te s have taken th e proper d ir e c tio n in th e estab lish m en t o f b a sic ed u ca tio n a l law in t h e ir c o n s titu tio n s . To summarize, i t has been shown th a t ed u ca tio n , by n ot b ein g m entioned in th e United S ta te s C o n s titu tio n , has J 28 been d eclared in the law to be a s ta te fu n ctio n . A ll o f the s t a te s have Included p ro v isio n s in th e ir c o n s titu tio n s fo r ed u cation , not as a b e n e fit to th e in d iv id u a l, but as a n e c e s s ity fo r the p reserv a tio n o f th e s ta te and for the gen eral w e lfa r e . The c o n s titu tio n a l p ro v isio n s vary in number and degree o f s p e c i f i c it y from s t a te to s t a t e , but most are q u ite gen eral in scop e. Power o f s ta te le g is la t u r e s . I f one a ccep ts the t h e s is that education i s a s t a t e fu n ctio n and observes th a t most s t a t e c o n s titu tio n a l p ro v isio n s for i t are gen eral in n a tu re, one i s led to the co n clu sio n that the power o f s ta te le g is la tu r e s i s broad in d efin in g the s p e c if ic s o f s ta te ed u ca tio n a l programs. That t h is i s true has been proclaim ed by many a u th o r itie s and in many court d e c is io n s . For example, Hamilton and Mbrt d ecla re: The c o n s titu tio n s o f a l l the s t a t e s con tain p ro v isio n s which make i t o b lig a to ry upon the l e g is la tu r es to provide for th e estab lish m en t o f e f f i c ie n t and uniform system s o f p u b lic sc h o o ls. T h erefore, a l l sta tu to r y p ro v isio n s r e la tin g to education are passed in obedience to th ese c o n s ti tu tio n a l mandates. With c e r ta in e x c e p tio n s, the le g is la t u r e s have plenary power in ed u ca tio n a l m atters in the s t a t e s . (9 :1 7 ) Bolm eier d escrib es the power o f the s t a t e le g is la tu r e s over education to be a s fo llo w s: 29 In every s t a te the le g is la t u r e has plenary or com plete a u th o rity over m atters r e la tin g to sch o o ls excep t so fa r as r e str a in e d by the s t a te c o n s titu tio n and the c o n s titu tio n o f the U nited S ta te s . W ithin the c o n s titu tio n a l lim it s , the le g is la tu r e i s empowered to determ ine the type o f sch o o ls to be e s ta b lish e d throughout the s t a t e ; the means o f t h e ir support; the typ es o f th e ir curriculum s; the manner o f t h e ir c o n tr o l; and the q u a lif ic a t io n s , d u t ie s , and com pensation o f sch o o l p erson n el. (171:191) Garber makes the p o in t: The power o f the le g is la t u r e w ith regard to the a d m in istra tio n o f ed u cation w ith in i t s co n fin es i s com p lete, because ed u cation i s a fu n ctio n o f the s t a t e . I t need not fin d some oth er source o f power fo r i t s a c tio n . I t , i t s e l f , i s the source o f power in the m atters o f le g is la t io n concerning ed u cation . (4:24) The fa c t th a t each s t a t e le g is la t u r e has com plete c o n tr o l over the sch o o ls w ith in i t s borders r a is e s the q u estio n o f the ex ten t to which the le g is la t u r e should reasonably e x e r c ise th a t power. An Indiana court in 1890, in the case o f S ta te ex r e l . C lark, e t a l . v . Haworth, T ru stee, s ta te d th a t the ex ten t to which the le g is la t u r e should e x e r c is e i t s power over ed u cation was to be d eter mined by le g i s l a t i v e judgment e x c lu s iv e ly (4 8 ). A Colorado cou rt in 1893 ru led : U n le ss, th e r e fo r e , the c o n s titu tio n in express terms or by n ecessary im p lic a tio n lim it s i t , the le g is la t u r e may e x e r c is e i t s so v ereig n power in any way th a t, in i t s judgment, w i l l b e st subserve the g en era l w e lfa r e . (38) 30 Thus i t i s seen th a t the cou rts have taken the p o s itio n th a t the e x te n t to which the le g is la t u r e s may l e g i s l a t e concerning sc h o o ls i s a m atter for th e l e g i s l a tu res them selves to d e c id e . Through th e y e a r s, under t h is th eo ry , s t a t e le g is la t u r e s have en acted a great many laws concerning sc h o o ls in t h e ir s t a t e s . Bolm eier o b serv es: The g rea t m ajority o f th e se laws are w e ll con c e iv e d and a cco rd in g ly b e n e f ic ia l to the ed u ca tio n a l system s o f th e r e s p e c tiv e s t a t e s . U n fo rtu n a tely , though, th ere are many p ro v isio n s p e r ta in in g to ed u cation which are poorly con ceived and thereby d etrim en ta l. More s p e c i f i c a l l y , th ere are many s t a t e ed u ca tio n a l laws which are n ot "in tune w ith the tim e s." (171:188) Much resea rch has been done on th e e f f e c t o f sc h o o l laws on th e sc h o o ls o f th e in d iv id u a l s t a t e s . For exam ple, Hearn in Tennessee (155) and B ratton in C a lifo rn ia (145) have p erceiv ed th e same problem th a t con fron ted B olm eier. W hile i t i s tru e th a t th e le g is la t u r e may make w hatever laws concerning ed u cation i t w an ts, i t must come to some d e c isio n as to how s p e c if ic th ese laws should b e . As e a r ly as 1879, an Indiana c o u r t, in Robinson. T reasurer v . Schenck, p o in ted out t h a t , althou gh i t was p o s s ib le for th e s t a t e le g is la t u r e to make alm ost any kind o f law i t wanted to concerning the s c h o o ls , i t s proper fu n ctio n was to d ea l w ith g e n e r a lit ie s rath er than w ith s p e c i f i c s . The 31 cou rt d eclared : I t would be a b so lu te ly im p o ssib le fo r th e l e g i s la tu r e to do more than provide by law fo r a g en era l and uniform system o f common s c h o o ls , fo r they cou ld not p rescrib e the d e t a ils fo r the government o f each sch o o l d i s t r i c t in th e s t a te . . . (45) Even the most cursory exam ination o f s t a t e sch o o l law throughout th e U nited S ta te s would lead to the co n clu sio n th a t the s t a t e le g is la t u r e s have been most a c tiv e in the e x e r c is e o f t h e ir powers over ed u cation . Garber fea rs th a t they may have gone too fa r: With the enactment o f a g r e a tly in crea sed amount o f le g is la t io n r e la tin g to p u b lic sc h o o ls and p u b lic ed u ca tio n , th e sch o o l codes o f many s t a t e s have become ex ceed in g ly complex and cumbersome. . . . Many co m p ila tio n s o f sch o o l laws . . . are o f l i t t l e va lu e to th ose who m ust, or should b e , p rim arily concerned w ith them. A lto g eth er too o fte n they are a patchwork r e s u ltin g from a c c r e tio n . (173:159) In flu en ce o f c o u r ts . The s t a t e le g is la t u r e s make the laws concerning the s c h o o ls , but the cou rts make the f in a l d eterm in ation o f the e f f e c t s o f th ese laws on the sc h o o ls o f the s t a t e . Hamilton and Mort, in The Law and P u b lic E ducation, w ith C ases, have exp lain ed the r o le o f the co u rts in sc h o o l le g is la t io n to be as fo llo w s: The p u b lic sch o o ls e x is t by op eration o f law. They are the crea tu res o f th e le g is la t u r e under the a u th o r ity o f the s e v e r a l s t a te c o n s t it u t io n s . 32 Since both c o n s titu tio n a l p ro v isio n s and l e g i s l a t iv e enactm ents are u su a lly drawn in language more or le s s g en era l, what may or may not be done under them becomes a m atter o f in te r p r e ta tio n by the c o u r ts. In oth er words, i f the law i s a gen eral one, the f in a l determ ination o f whether p a r tic u la r a c ts are le g a l i s the fu n ctio n o f the co u rts. This i s as tru e in c a se s in v o lv in g th e p u b lic sch o o ls as in other m a tters. The co u rts are ju d i c i a l b odies and are charged w ith the in te r p r e ta tio n and not the making o f the law. They do not i n i t ia t e le g is la t io n and a c t only when c o n tro v er sie s are brought b efore them. (9:14) R eferrin g to the way in which the cou rts view th e ir r e s p o n s ib ility to in te r p r e t the law , the same authors remark: . . . There seems to be a decided relu cta n ce by cou rts to in te r fe r e w ith le g is la t iv e attem pts to d ea l w ith ed u ca tio n a l m atters w ith in th e s t a t e . The fa c t th at the le g is la tu r e has in i t s d is c r e tio n determ ined th a t c e r ta in ed u cation al p o lic ie s are d e sir a b le w ith in the s t a t e , i s , o f i t s e l f , stron g evidence th at the p o lic y is d e s ir a b le . (9:25) The p oin t o f view o f the courts toward ed u ca tio n a l laws passed by s ta te le g is la t u r e s , and the r o le o f the cou rts in in te r p r e tin g th ese law s, may a t tim es mean th a t, "from an ed u ca tio n a l stand p oint much harm can be done by a l e g i s la tu re w ithout c o n f lic t in g w ith the c o u r t's sense o f ju s t ic e " (9 :2 ). I t has been shown th a t the sch o o ls o f a s t a te come d ir e c tly under the co n tro l o f the s ta te le g is la t u r e through I the laws passed concerning ed u cation . The sch o o ls are alsOj 33 under the c o n tr o l o f th e cou rts because the courts in te r p r e t the a p p lic a b ility o f the law s. In many s t a t e s , the le g is la t u r e has d eleg a ted to a reg u la to ry body, such as a s t a te board o f ed u ca tio n , power to p rescrib e ru le s and r e g u la tio n s for th e op eration o f the sc h o o ls. The ru le s passed by th ese bodies have the same e f f e c t on sch o o l d is t r i c t s as do laws o r court in te r p r e ta tio n s . In any phase o f school management wherein the s t a te board o f education has been given powers o f o p era tio n , the r u le s and r e g u la tio n s o f the s ta te board have the fo rce and e f f e c t o f law. (13:xx) L e g is la tiv e d eleg a tio n o f r e s p o n s ib ility . In a l l s t a te s o f the union, le g is la t u r e s have d elegated some o f the r e s p o n s ib ility fo r the op eration o f sch o o ls to lo c a l sch o o l boards. Because i t i s th is lo c a l asp ect o f c o n tro l o f the sch o o ls th a t i s most r e a d ily seen by the c i t iz e n s , and because most people do n o t understand the le g a l theory o f s ta te c o n tr o l o f ed u ca tio n , lo c a l co n tr o l o f education has become more complex and s t a t e and fe d e r a l governments have seemed to intrude upon th e liv e s o f people more and more, a great d ea l o f in te r e s t has been engendered in lo c a l co n tr o l o f ed u cation. I t is not unusual to hear p eo p le, both in and out o f p r o fe ssio n a l ed u cation al ranks, speak o f s ta te or fe d e r a l ’’in vasion " o f lo c a l r ig h t s . 34 Y et, i t must be reco g n ized , in le g a l theory the s t a te s have com plete and alm ost u n lim ited j u r is d ic t io n so fa r as the op eration o f the sch o o ls o f the s ta te i s concerned. Hamilton and Mort ex p la in : Education i s , th en , a s ta te as co n tra sted w ith a lo c a l fu n ctio n . Local d i s t r i c t s are crea tu res o f the s t a te fo r the carryin g out o f the o b lig a tio n s o f the s ta te to educate i t s c i t iz e n s . L egally i t i s p o ssib le fo r the le g is la t u r e to determ ine ed u ca tio n a l m atters in a l l d is t r ic t s in every d e t a il. As a m atter o f p r a c tic e , the le g is la t u r e d ele g a te s to variou s a g en cies or o f f ic e r s many o f the d e t a ils o f sch o o l a d m in istr a tio n , but such pro cedure a r is e s only from th e fa c t th a t the l e g i s la tu r e s con sid er i t im p ra ctica l or unwise to enact le g is la t io n in such d e t a il as to provide fo r every contingency which may a r is e in the a d m in istra tio n o f ed u ca tio n a l m atters in every sch o o l d i s t r i c t in the s t a t e . The fa c t th a t t h is procedure i s follow ed in no way im p lies th a t the le g is la t u r e has not the power to adopt another i f i t deems w ise . (9:18) Local c o n tr o l. The same w r ite r s and oth ers have emphasized the p oin t th a t lo c a l sch o o l d i s t r i c t s have no in h eren t powers but on ly such powers as are granted to them by the s t a te le g is la t u r e . To c i t e ju s t a few: There i s no such th in g as a lo c a l ed u ca tio n a l program in the te c h n ic a l le g a l se n se . (9 :9 ) In the c o n tro l o f ed u ca tio n , th en , the l e g i s la tu r e i s the source o f power and i t s power i s f u l l and com plete u n le ss r e s t r ic te d by the s t a te or fe d e r a l c o n s titu tio n . I t may enact any law i t se es f i t w ith regard to education which i s not 35 e x p r e ssly forbidden by th e s t a t e or fe d e r a l c o n s t i tu tio n . (4:24) In view o f th e fa c t th a t p u b lic sc h o o ls are e s ta b lis h e d to promote th e g en era l w e lfa r e , they are s t a te in s t it u t io n s , not lo c a l o n es. (16:30) The c o u r ts, to o , have made t h is p o in t c le a r . In S ta te ex r e l . C lark, e t a l . v . Haworth in Indiana in 1890, the cou rt m aintained: E s s e n tia lly and i n t r i n s i c a l l y , the sc h o o ls in which are educated and tr a in e d the ch ild re n who are to become the r u le r s o f the Commonwealth are m atters o f s t a t e , and n ot o f lo c a l, j u r is d ic t io n . (48) A Kentucky cou rt in 1918 sta te d : Under our system , every common sch o o l in the s t a t e , whether lo c a te d in a c i t y , or in the cou n try, i s a s t a t e in s t it u t io n , p r o te c te d , c o n tr o lle d , and reg u la ted by the s t a t e . (31) Remmlein, w r itin g on sch o o l law , s t a t e s : The sc h o o l d i s t r i c t and the sc h o o l board are s t a te a g en cies and are su b je c t to the w i l l o f the s t a t e le g is la t u r e and the s t a t e ed u ca tio n a l a u t h o r it ie s , excep t in th o se m atters l e f t to lo c a l d is c r e tio n . ( 1 3 :x x v iii) In s p it e o f the v a st body o f law and lit e r a tu r e on th e s u b je c t, th e fa c t th a t th e sc h o o ls are le g a lly crea tu res o f the s t a t e ra th er than o f the lo c a l community i s one seem ingly not g e n e r a lly understood. Or, i f under sto o d , are not w holly a ccep ted . Hamilton and Mort p oin t out one p o s s ib le reason fo r t h is lack o f acceptance when , 36 they say: . . . In o th er words, g en era l powers o f the m u n ic ip a lity , even though they may d erive d ir e c t ly from the c o n s t it u t io n , must bow to s t a te r e g u la tio n in the f i e l d o f ed u ca tio n , e s ta b lis h e d by a u th o rity o f the le g is la t u r e . This concept has fa r reach in g im p lic a tio n s . Not a l l o f them are good. When th e concept i s l i t e r a l l y in te r p r e te d as p erm ittin g a lo c a l d is t r i c t to do only th ose th in g s s p e c ifie d as manda to ry or p erm issive in the law, a narrow in te r p r e t a tio n o f what i s p erm issive may slow down d e sir a b le exp erim en tation . (9 :6 ) I t may be seen from the review o f the lit e r a tu r e p resen ted thus fa r t h a t , in the absence o f p r o v isio n s for ed u cation in the fe d e r a l c o n s titu tio n , the le g a l founda tio n s fo r p u b lic ed u cation in the U nited S ta te s r e s t on the fo llo w in g so u rces: (1) th e s t a te c o n s t it u t io n s , (2) s t a t e l e g i s la t i o n , (3) cou rt in te r p r e ta tio n s o f s t a t u t e s , (4) r u le s and r e g u la tio n s o f s t a te boards o f ed u cation or s im ila r b o d ie s, and (5) r u le s and r e g u la tio n s o f lo c a l boards o f ed u ca tio n . In a l l o f the lit e r a t u r e , one c a r d in a l p r in c ip le stands o u t. That i s , ed u cation i s a fu n ctio n o f the s ta te and, th e r e fo r e , s t a te le g is la t u r e s have power over ed u cation in t h e ir s t a t e s , lim ite d on ly by th e s t a te and fe d e r a l c o n s titu tio n s . J 37 C a lifo rn ia In the s t a te o f C a lifo r n ia , as in the oth er s t a te s o f the u n ion , the le g a l foundations o f p u b lic education r e s t on the s t a t e c o n s t it u t io n , s ta tu te s enacted by the le g is la t u r e , in te r p r e ta tio n o f s ta tu te s by the c o u r ts, r u le s and re g u la tio n s o f lo c a l boards o f ed u ca tio n , and r u le s and r e g u la tio n s o f the S ta te Board o f Education. One o th er source o f in te r p r e ta tio n o f the s ta tu te s has an e f f e c t on th e sc h o o ls o f C a lifo r n ia . This i s the op in ion s o f the a tto rn ey g en e r a l. These, alon g w ith court d e c isio n s and s t a t u t e s , are d iscu sse d in some d e t a il in Chapter I I I as they a f f e c t the problem o f t h is stu d y -- curriculum . The review o f lite r a tu r e p resen ted in t h is chapter i s co n fin ed to more g en era l c o n sid e r a tio n s. C a lifo rn ia c o n s t it u t io n . Lide rep o rts th a t in C a lifo r n ia , when the c o n s titu tio n was adopted in 1849, th ere were four p ro v isio n s concerning ed u ca tio n . By 1931, there were th ir te e n c o n s titu tio n a l p r o v isio n s d ea lin g w ith ed u cation (2 5 ). A 1958 p r in tin g o f the C o n stitu tio n o f the S ta te o f C a lifo rn ia d is c lo s e d th a t th ere were n in e te en s e c tio n s in A r tic le IX (the main d iv is io n o f the I c o n s titu tio n ) th a t d e a lt w ith ed u cation (9 2 ). However, a 38 review o f the 1961 Education Code o f C a lifo rn ia r e v ea ls th a t, in a d d itio n to the s e c tio n s under A r tic le IX o f the s t a te c o n s titu tio n , there are tw e n ty -six s e c tio n s , in a l l , in other d iv is io n s o f the c o n s titu tio n which a f f e c t educa tio n in some way (9 5 ). It i s obvious th a t the number o f p ro v isio n s o f A r tic le IX o f the c o n s titu tio n , as w e ll as oth er s e c tio n s o f th a t document, th a t bear on education have grown through th e y e a r s. The two most important s e c tio n s o f A r tic le IX o f th e s ta te c o n s titu tio n are S ectio n 1, which s t a te s : A gen eral d iffu s io n o f knowledge and i n t e l l i gence b ein g e s s e n t ia l to the p reserv a tio n o f the r ig h ts and lib e r t ie s o f the p eo p le, the l e g i s l a ture s h a ll encourage by a l l s u ita b le means the promotion o f i n t e lle c t u a l , s c i e n t i f i c , m oral, and a g r ic u ltu r a l improvement. (92) and S ectio n 5 , which s t a te s : The le g is la t u r e s h a ll provide for a system o f common sch o o ls by which a free sch o o l s h a ll be kept up and supported in each d i s t r i c t a t le a s t s ix months in every y e a r , a f te r the f i r s t year in which a sch ool has been e s ta b lish e d . (92) These two p ro v isio n s form th e b a sic le g a l foundation fo r p u b lic ed u cation in the s t a te o f C a lifo r n ia . C a lifo rn ia le g is la t u r e . In f u l f i l l i n g the o b lig a tio n placed upon i t by the c o n s titu tio n a l p ro v isio n s noted above, the C a lifo rn ia s ta te le g is la tu r e through the years 39 has enacted many s ta tu te s concerning ed u cation; so many, in f a c t , th a t the Education Code has grown to two large volumes and the t o t a l body o f law a ffe c tin g education in clu d es not only the p ro v isio n s found in the Education Code but a ls o p ro v isio n s in clu d ed in many oth er codes and docu m ents, as w e ll. I t should be n oted , however, th a t n ot a l l o f the s ta tu te s a ffe c tin g education in C a lifo rn ia have come about through enactments o f the s t a te le g is la t u r e . J . W esley B ratton, in a d o cto ra l d is s e r ta tio n p resen ted to the U n iv ersity o f Southern C a lifo rn ia in 1951, pointed out th a t the i n i t i a t i v e and referendum have been used by the people o f the s ta te more o fte n in o b ta in in g ed u ca tio n a l le g is la t io n in C a lifo rn ia than in alm ost any oth er s ta te in the union (1 4 5 ). E ducational le g is la t io n freq u en tly r e f l e c t s the current s t a te o f mind o f the p u b lic as fa r as lo c a l, n a tio n a l, and in te r n a tio n a l s itu a tio n s are con cerned. In sofar as i t rep resen ts current con cern s, the reasons fo r th e passage o f c e r ta in le g is la t io n in e v ita b ly change from year to y ea r. C onsequently, c e r ta in educa tio n a l laws become o b s o le te . In another d o cto ra l d is s e r ta t io n , A lton E. S co tt p ointed out s ix reasons fo r o b so le s cence in the C a lifo rn ia Education Code: 40 1. H is to ric a l development of the code. 2. Economic and s o c ia l changes in the s t a t e of C a lif o rn ia . 3. L e g isla tio n which has been enacted to meet the demands of s p e c ia l i n t e r e s t groups. 4. L eg isla tio n which has been enacted to meet s p e c ific but not re c u rrin g circum stances. 5. Disuse of code sec tio n s th a t no longer meet educational needs. 6. Enactment of s ta tu te s th a t are in c o n f lic t w ith previous le g is la tio n . (164:385) S co tt observes th a t , even though se ctio n s of the educa t io n a l law become o b so le te , they are r a r e ly removed from the code. This is another reason why the number of school laws a ffe c tin g education in C a lifo rn ia grows w ith each passing year. I n te r p re ta tio n of school law. Laws alone do not determine what takes place in the classrooms of the s t a t e of C a lifo rn ia . In te rp re ta tio n s of the laws may o ften be as im portant as the laws themselves. Such in te rp r e ta tio n s come from the c o u rts, the atto rn e y g en e ra l, and the county d i s t r i c t a tto rn e y s. The l a t t e r o f f i c i a l s have been described as having c re a te d , in e f f e c t , as many systems of p ublic education in the s ta te of C a lifo rn ia as th ere are 41 c o u n tie s . The reason fo r t h is lack o f u n iform ity i s the c o n f lic t in g and v a r ia b le in te r p r e ta tio n s o f sch o o l law made by th ese o f f i c i a l s , as was p oin ted out in 1952 in a d is s e r t a tio n by Webster (1 6 9 :1 5 4 ). in 1953, Behrens (143) stu d ie d C a lifo rn ia supreme cou rt d e c isio n s w ith r e sp ect to p u b lic sc h o o l ad m in istra tio n ; in 1955, Ellerman (150) conducted a s im ila r stud y. These two stu d e n ts, to g eth er w ith W ebster, emphasized the fa c t th a t C a lifo rn ia sc h o o ls are governed not only by the laws and r e g u la tio n s s e t up by the le g is la t u r e , the s t a te board o f ed u ca tio n , and the lo c a l boards o f ed u ca tio n , but are a ls o governed by the in te r p r e ta tio n s made o f th ese laws by th e co u rts and th e a tto rn ey g en era l. The p resen t s e c tio n o f the review o f lite r a tu r e has been concerned w ith the le g a l b a s is o f p u b lic educa tio n in C a lifo r n ia . I t was shown th a t s t a te law s, court d e c is io n s , and op in ion s o f the a tto rn ey g en era l have pro vid ed the b a s ic le g a l str u ctu r e fo r the sc h o o ls o f the s t a t e . These m atters are d iscu sse d in g re a te r d e t a il in Chapter I I I o f t h is stu d y , e s p e c ia lly as they concern curriculum and in s tr u c tio n in C a lifo r n ia . S ev era l co n clu sio n s may be drawn from the lit e r a - 42 ture regarding the le g a l foundations o f p u b lic ed u ca tio n . They are as fo llo w s: 1. The fe d e r a l c o n s titu tio n does not m ention edu c a tio n , and i t has been ru led th a t th e Tenth Amendment o f th a t c o n s titu tio n r e ser v es to the s t a t e s a l l powers con cern in g ed u cation . 2 . Although ed u cation i s a s t a t e fu n c tio n , i t i s o f in t e r e s t to the fe d e r a l governm ent, p a r tic u la r ly through the Fourteenth Amendment and i t s "due p rocess" c la u s e . 3. A ll s t a te c o n s titu tio n s make some p ro v isio n fo r a system o f p u b lic ed u cation . 4 . S ta te le g is la t u r e s have plenary power in the making o f sch o o l law. A ll s t a te le g is la t u r e s have ex e r c is e d t h is power to some d egree. 5. Local sc h o o l d i s t r i c t s and sch o o l boards are crea tu res o f the s t a te le g is la t u r e and p o ssess no r ig h ts o f t h e ir own. 6. School law , as i t a c tu a lly a f f e c t s what takes p lace in the classroom s o f America, i s a product o f the in t e r e s t o f the fe d e r a l government in ed u ca tio n , the s t a te c o n s t it u t io n s , the s t a t u t e s , in te r p r e ta tio n s o f s t a te law by the co u rts and a tto rn ey s g e n e r a l, by r u le s 43 and r e g u la tio n s o f s t a te boards o f ed u ca tio n , and by r u le s and r e g u la tio n s o f the lo c a l boards o f ed u ca tio n . The le g a l foundations o f p u b lic ed u cation are broad and v a r ie d . To f u l f i l l t h e ir o b lig a tio n to s o c ie t y in an adequate manner, educators must be fa m ilia r w ith them a l l . L egal C ontrols Over Curriculum and In str u c tio n The curriculum , as the h eart o f the sc h o o l, i s the most im portant a sp ect o f the . . . sc h o o l. I t i s the curriculum which g iv e s ex p ressio n in con crete form to the ed u ca tio n a l th e o r ie s and p o lic ie s which govern . . . ed u cation in a given community. Whatever the accep ted o b je c tiv e s o f . . . ed u cation may b e, the degree to which they are a tta in e d and th e manner in which they are a t ta in e d are determ ined in large measure by the curriculum and the ed u ca tio n a l th e o r ie s which i t r e p r e se n ts. (12:62) This q u o ta tio n from Otto ex p resses the importance o f the curriculum in the sc h o o ls o f America. I t i s be cause o f t h is im portance th a t the le g a l requirem ents o f curriculum become o f v i t a l in t e r e s t to ed u ca to rs. In the p resen t stu d y , curriculum and in s tr u c tio n have been de fin e d in Chapter I in ra th er narrow term s. This i s because the in v e s tig a tio n i s concerned p rim arily w ith su b je c ts and t h e ir con ten t as mandated to the sc h o o ls by s t a t e l e g i s la tu r e s . Otto sa y s: 44 There are s e le c te d s o c ia l h e r ita g e s which are b a sic to an understanding o f and p a r tic ip a tio n in p resen t day l i f e and which must become a part o f the ed u ca tio n a l equipment o f every c h ild . W ithin each s ta te th ere are su b je c ts and a c t i v i t i e s w hich, as a r e s u lt o f l e g i s l a t i v e enactm ents, must be accorded a p la ce in the sc h o o l curriculum . (12:63) I t i s t h is le g a lly -r e q u ir e d su b ject-m a tter co n ten t w ith which the p resen t study i s concerned. The Federal Level A lthough education in the U nited S ta te s i s a s t a t e fu n c tio n , and there i s th erefo re no n a tio n a l curriculum , i t should be recogn ized th a t there are a c t i v i t i e s a t the fe d e r a l le v e l which a f f e c t the curriculum in a l l sc h o o ls o f America. P e r io d ic a lly , in response to some p r e ssin g n a tio n a l need or emergency, th e fe d e r a l government has passed laws which a f f e c t the curriculum o f the sc h o o ls throughout the land. Examples o f t h is are th e Smith- Hughes Act fo r V ocation al E ducation, and the more r e ce n t N ation al D efense Education Act which em phasized fo r e ig n lan guages, m athem atics, and s c ie n c e . While th ese a c t s , and oth ers lik e them, are not mandatory on th e sc h o o ls o f the n a tio n , acceptance o f the fin a n c ia l a id they b rin g puts a sch o o l d i s t r i c t in the p o s itio n o f a cc ep tin g c e r ta in fe d e r a l c o n tr o ls (o r , a t l e a s t , emphases) in i t s 45 curriculum . Current trends seem to in d ic a te an in crea sin g involvem ent o f the fed e ra l government in sch o o l curriculum , and there are those who view the development w ith alarm. E lain e Exton, w ritin g in the American School Board Journal in an a r t ic le e n t it le d "Meeting the Emerging Threats to Local Curriculum C o n tr o l,” c i t e s the fo llo w in g fo rce s as n a tio n a l th rea ts to lo c a l co n tro l over curriculum : 1. N ational in d iv id u a ls or groups d ea lin g w ith curriculum developm ent. 2. Copying Europe. 3. The N ational Defense Education A ct. 4 . T ech nological developments such as teach in g machines and t e le v is io n . 5 . The nation-w ide foun dation s. 6. N ational t e s t in g a g e n c ie s. (56) These and oth er straw s in the wind appear to in d i ca te th a t, even though there i s not a n a tio n a l curriculum , n a tio n a l fo rces and the fe d e r a l government do have a mounting e f f e c t on what a c tu a lly tak es p lace in the c la s s rooms o f America. The S ta te Level Although i t appears th a t the fed er a l government does ex ert some e f f e c t on the curriculum in the sc h o o ls , i t i s to the s ta te s th at one must look for evidences o f a c tu a l le g a l co n tro ls over curriculum and in s tr u c tio n . As the education p ro fessio n has grown more and more concerned over the cu rr icu la r a sp ects o f sch o o l l e g i s l a tio n , stu d ie s o f such le g is la t io n have become more numerous. I t is in te r e s tin g to note th a t Good m entions 207 d is s e r ta tio n s on sch ool law th a t were com pleted be tween 1918 and 1942. Of t h is number, only twenty d e a lt s p e c if ic a lly w ith curriculum problems (1 7 0 ). This would not seem to be a great number; y e t i t is lik e ly that present-day concern over lo c a l c o n tro l o f the sch o o ls w i l l lead to more stu d ie s o f the e f f e c t o f s ta te laws on curriculum and in s tr u c tio n . General resea rch . I t has been e s ta b lish e d in the law th at the s ta te le g is la tu r e s have alm ost com plete powers over a l l a sp ects o f the p u b lic sc h o o ls . The only c o n tr o llin g fa cto rs are the s ta te and fed era l c o n s titu t io n s . W riters who have commented on s ta te co n tro l o f curriculum and on court d e c isio n s a ffe c tin g curriculum have in d ica ted that the s t a te le g is la t u r e i s the c h ie f source o f power over the curriculum o f the p ub lic sch o o ls o f a s t a t e . As ea rly as 1889, an Indiana co u rt, in the 47 case o f S ta te ex r e l . Clark v . Haworth, School T ru stee, sta te d : I t i s im p o ssib le to con ceive o f the e x iste n c e o f a uniform system o f common sch o o ls w ithout power lodged somewhere to make i t uniform , and even in the absence o f exp ressed c o n s titu tio n a l p r o v is io n s , th a t power must n e c e s s a r ily r e sid e in the le g is la t u r e . I f i t does r e sid e th e r e , then th a t body must have, as an in c id e n t o f the p r in c i p a l power, the a u th o r ity to p rescrib e the course o f study and the system o f in s tr u c tio n th a t s h a ll be pursued and adopted, as w e ll as the books which s h a ll be u sed . (47) Since th a t tim e, such w r ite r s as Schroeder (1 6 :6 3 ), Hamilton and Mort (9 :9 4 ), and Kramer (62) have made sim ila r o b ser v a tio n s. Ham ilton, in The Courts and the Curriculum, summarizes the g en era l p r in c ip le u nd erlyin g l e g i s l a t i v e c o n tr o l o f the curriculum , as fo llo w s: The on ly lim ita tio n upon the power o f the le g is la t u r e to c o n tr o l th e curriculum and, in f a c t , to e s t a b lis h , m ain tain , and c o n tro l the e n tir e p u b lic sch o o l system i s the C o n stitu tio n . (8:151) R ecognizing th a t s t a te le g is la t u r e s have com plete a u th o rity over the curriculum o f th e p u b lic sch o o ls in th e ir s t a t e s , s e v e r a l w r ite r s have stu d ied the form and trends th a t such le g is la t io n have taken. In 1955 R eu tter rep orted on "The Law and the Curriculum" in Law and Con temporary Problem s. He observed th a t sta tu to r y p ro v isio n s I concerning su b jec t m atter v a ried among the s t a t e s , but 48 th a t a l l in clu d ed mandatory, p er m issiv e, and p r o h ib itiv e p r o v isio n s. Such id ea s and a t tit u d e s as p a tr io tism and good c itiz e n s h ip were found in most s t a t e s to be part o f the le g a l requirem ents o f curriculum , as were gen eral p r e s c r ip tio n s concerning tea ch in g m ethods. He found, to o , th a t the cou rts in th e ir in te r p r e ta tio n s o f th ese s ta tu te s were in c lin e d to be lib e r a l and to a llo w the s t a t e s to go w e ll beyond what m ight be c a lle d the "common branches" (6 5 ). Glen Robinson made the fo llo w in g p o in ts concerning c u r r ic u la r l e g i s la t io n , in 1961: 1. There i s a wide v a r ia tio n among the s ta te s concerning c u r r ic u la r le g is la t io n . 2. Trends in c u r r ic u la r l e g is la t io n were: a . In the pre-1920s through the la t e 1920s, much p r e s c r ip tio n . b . From the la t e 1920s to th e b egin ning 1950s, the e lim in a tio n o f much s p e c if ic p r e sc r ip t io n . c . From the m id-1950s to the p r e se n t, a retu rn to more p r e s c r ip tio n . 3. Most p r e s c r ip tiv e le g is la t io n i s in terms o f minimum requ irem en ts. (66) S ta tu s s t u d ie s . R esearch s tu d ie s and oth er forms o f lit e r a tu r e have approached the to p ic o f c u r r ic u la r le g is la t io n in many d iffe r e n t w ays. Going back to the e a r lie s t days o f such le g is la t io n in Am erica, Gauerke n o te s: 49 In the p ion eer days th ere seem to have been very few le g a l requirem ents regarding the curriculum to be ta u g h t. . . . The su b jec t o f s p e llin g was con sid ered o f prime im portance in the 1820s and 1830s in the W est. . . . For advanced rea d in g , the New Testament was used u n t il som ething more n ea rly p r a c tic a l cou ld be a ffo rd ed . . . . The curriculum o f the grammar sch o o l d id n ot expand r a p id ly . However, req u ired su b je c ts in crea sed from the th ree R 's u n t il th ere were sev en . The four a d d itio n a l were s p e llin g , grammar, geography, and American h is to r y . P hysiology a t la s t became number e ig h t. (5 :3 8 -3 9 ) Many resea rch ers have stu d ie d the number and kind o f curriculum p r e s c r ip tio n s found in the laws o f a l l o f the s t a te s o f the n a tio n . In t h is type o f stu d y, D ick in son , in 1933, found a t o t a l o f 2,109 p r e sc r ip tio n s d e a lin g w ith the curriculum throughout the U nited S ta t e s . The average number o f c u r r ic u la r p r e sc r ip tio n s among the s t a t e s was fo r ty -fo u r . He found th a t there was a tendency fo r an in cr e a se in c u r r ic u la r p r e s c r ip tio n , a tren d which was n a tio n -w id e. Among D ick in so n 's co n clu sio n s were the fo llo w in g : 1. S ta te ed u ca tio n a l p o lic ie s were v a ried . 2. P erm issive p ro v isio n s tended to become manda to r y . 3. L e g isla tu r e s assumed too g rea t a u th o r ity . 4 . The le g i s l a t i v e p rero g a tiv e was c a r r ie d too fa r . 5 . The laws a f fe c t in g the cu rr icu la were too s p e c if ic fo r the w e ll-b e in g o f the sch o o l system s o f the country. 6. I t would be fa r b e tte r fo r the laws to sp e c ify th at a gen eral end i s d esired to be achieved and leave the means o f ach ievin g t h is end to the appointed or e le c te d educators in each s t a t e . (148:245) At Teachers C ollege in 1932, Schmidt (15) came to con clu sio n s th a t were sim ila r to those o f D ickinson. In c o n tr a st, however, Brauer in 1955 noted a sm aller number o f cu rr icu la r p r e sc r ip tio n s enacted by s ta te le g is la t u r e s during the second quarter o f th is centu ry. He b e lie v e d th a t t h is trend toward red u ction could be expected to continue u n le ss the growth o f m ilita n t n a tio n a lism con tin u ed , to g eth er w ith an in crea se in world te n sio n s. The la t t e r s it u a tio n , he s a id , might w e ll b rin g g rea ter le g is la t iv e co n tro l over cu rricu la (1 4 6 ). That i s pre c i s e ly what has happened. The n ation-w ide in te r e s t in research in to cu rricu la r le g is la t io n has le d many authors o f books and a r t ic le s on sch o o l law to summarize the sta tu s o f cu rr icu la r l e g i s la tio n in the U nited S ta tes a t the tim e o f w r itin g . These w rite r s a ls o comment on the e f f e c t o f th ese laws on the sc h o o ls . Remmlein, Gauerke, and S e itz a l l p o in t out th a t there i s great v a r ie ty among s t a te s in the scope o f curriculum co n tro l through s ta te le g is la t io n . A ll s t a t e s , however, make some su b je c ts or to p ic s mandatory in the sc h o o ls . F requ en tly, the e f f e c t o f s p e c ia l in te r e s t groups and t h e ir p ressu res on th e le g is la t u r e s may be seen in p a r tic u la r c u r r ic u la r requirem ents, i . e . , a g r i c u ltu r e , the e v i l e f f e c t s o f a lc o h o l and n a r c o tic s , con se r v a tio n , and the lik e . According to most w r ite r s , the g r e a te s t problem in c u rr icu la r le g is la t io n i s the e f f e c t o f c e r ta in zealou s pressure groups. R arely, they p o in t o u t, do the le g is la t o r s have the proper background or understanding o f m atters o f curriculum to make w ise d e c i s io n s fo r a l l o f th e sc h o o ls o f the s ta te regarding new c u r r ic u la r le g is la t io n . Yet i t i s seldom found th a t the le g is la t o r s look to the ed u cation p r o fessio n fo r p r o fe s s io n a l and s k ille d guidance in th e se m a tters. While a l l the authors would admit th a t i t i s the fu n ctio n o f the le g is la t u r e to r e f l e c t the needs and w ishes o f the people o f the s t a te as fa r as c u r r ic u la r m atters are concerned, they would n ot claim th a t what i s w r itte n in to law i s in a l l ca ses a r e f le c t io n o f the w i l l o f a l l o f the p eo p le. Too o fte n , they would i n s i s t , a d d itio n s are made to c u r r ic u la r law on the b a s is o f the s p e c ia l in te r e s t groups th a t a p p lied the g r e a te s t p ressure on the le g is la t u r e 52 The Encyclopedia o f Educational Research lends support to the b e lie f s o f th ese authors in i t s report th a t "because o f the emphasis on scien ce and math, the trend a fte r 1957 was toward more s ta te required su b jects" (1 0 :1 , 385). i t i s a ls o p ointed out th a t not a l l pressure groups e x is t o u tsid e the education p r o fe ssio n . Although there is wide v a r ia tio n among s ta te s in the curriculum p r e sc r ip tio n s w ritten in to law, common fea tu res run through most o f the enactm ents. The trends toward more or le s s p rescr ip tio n have a ffe c te d a l l the s t a te s a t much the same time during the present century. Furthermore, the e f f o r t s o f p a r tic u la r pressure groups th a t seem to in s e r t c e r ta in p re sc rip tio n s in to the law are seen to have been op erative in a l l the s t a te s in much the same way a t much the same tim e. As has been shown, many o f the stu d ie s o f cu rricu lum le g is la t io n have d e a lt w ith the p re sc rip tio n s found in s t a te laws throughout the n a tio n . Other research ers have concentrated on p a r tic u la r region s o f the U nited S ta te s . Nixon in 1932 d e a lt w ith the s ta te o f Ohio (160); Hunt in 1937 stu d ied fa c to r s in flu e n c in g the curriculum in Kentucky (156); Smith in 1948, in a d is s e r ta tio n w ritten a t the U n iv ersity o f Southern C a lifo rn ia e n t it le d 53 " L e g isla tiv e C ontrol o f the P ublic School Curriculum" stu d ie d c u r r ic u la r le g is la t io n in Utah, Oregon, Nevada, W ashington, and M ontana--the area covered by the North w est A sso c ia tio n o f Secondary and Higher S ch o o ls. The l a t t e r study was exh au stive and in clu d ed not only c o n s t i tu tio n a l and sta tu to r y law but a tto rn ey gen eral op in ion s and s ta te supreme court d e c is io n s . He found a con tin u in g in crea se in the number o f curriculum p r e sc r ip tio n s from 1900 to 1947, most o f the p r e sc r ip tio n s b ein g o f a manda tory typ e. He reported th a t c e r ta in phases o f the cu r riculum had r e c e iv e d much more l e g is l a t i v e a tte n tio n than o th e r s. The one area th a t had re c e iv e d the g r e a te st amount o f a tte n tio n was h e a lth and s a f e t y , and the area th a t had r e c e iv e d the le a s t was the a e s th e t ic a r t s . The g r e a te st amount o f curriculum le g is la t io n was enacted im m ed iately fo llo w in g World War I; the sm a lle st during the d ep ression years o f the 1 9 3 0 's. Method and time req u ire ments were found in some o f the s t a t u t e s , but th ese were r e la t iv e ly few in number. One v a lu a b le co n trib u tio n o f Sm ith's study was h is statem ent o f a problem in c u r r ic u la r le g is la t io n th a t has been o f concern to a l l w r ite r s: In the p resen t s it u a tio n regarding c u r r ic u la r le g is la t io n th ere e x is t s an in esca p a b le dilemma. I f i t i s the fu n ctio n o f the le g is la t u r e s to b u ild the curriculum In co n sid era b le d e t a il, fa r to o l i t t l e le g is la t io n has been en a cted , fo r s e v e r a l c r u c ia l a sp e c ts have been om itted . I f t h e ir con t r o l i s properly more g en era l in n a tu re, th ere i s fa r too much, fo r innumerable d e t a ils and te c h n i c a l m atters are now in clu d ed , (166:405) McClure (158) presen ted a d is s e r t a tio n to the U n iv e rsity o f Oklahoma in 1957 in which a llu s io n was made to t h is im portant problem. Roberts (162) a t the U niver s i t y o f Texas in 1960 emphasized the same problem , s t a tin g th a t a c o n s is te n t r e la tio n s h ip did n ot e x i s t between the ed u ca tio n a l o b je c tiv e s th a t were emphasized a t any p a r tic u la r h is t o r ic a l p eriod and the curriculum l e g is la t io n th a t was enacted (1 6 2 ). The stu d ie s o f s t a te or r e g io n a l curriculum l e g i s la tio n have been perhaps more h e lp fu l to the p resen t in v e s tig a tio n than have s tu d ie s o f a n a tio n a l sco p e, fo r they d e a lt more s p e c if i c a ll y w ith the kinds and numbers o f l e g i s l a t i v e p r e s c r ip tio n s . Taken to g e th e r , both typ es o f resea rch form a com posite which f i l l s out the d e t a ils l e f t blank by many o f the broader but sh allow er s tu d ie s p rev io u sly review ed. Some s ta tu s stu d ie s in curriculum le g is la t io n have been concerned w ith the e n tir e U nited S t a t e s , some have 55 been con fin ed to c e r ta in s t a t e s or r e g io n s , and oth ers have con cen trated on p a r tic u la r le v e ls o f the ed u ca tio n a l system . Some have d e a lt s p e c if i c a ll y w ith le g i s l a t i v e c o n tr o l o f the elem entary sch o o l curriculum . One o f the e a r l i e s t o f th ese s tu d ie s was done by Flanders a t Teachers C ollege in 1925. In t h is study Flanders in v e s tig a te d the number o f p r e s c r ip tio n s r e p r ese n tin g c u r r ic u la r s ta tu te s d ea lin g w ith elem entary sc h o o ls in c e r ta in key y e a r s— 1903, 1913, and 1923--throughout th e U nited S ta te s . He found more than 2,200 p r e s c r ip tio n s th a t had been enacted by s t a te le g is la t u r e s regarding what would or would not be taught in the elem entary s c h o o ls . Wide v a r ie ty in the kinds o f p r e s c r ip tio n s , as w e ll as in the means by which th ese p r e s c r ip tio n s took on th e fo rce o f law was noted among the s t a t e s . Flanders observed th a t th ere was no s t a t e in the union th a t did not a llo w some d is c r e tio n as to th e su b je c ts to be tau gh t; in every s t a t e th ere was abundant freedom l e f t to ed u ca tio n a l a u th o r itie s to s e le c t the su b d iv isio n s which should be in clu d ed in a given s u b je c t. Furthermore, there was no s in g le su b jec t th a t was uniform ly req u ired by d ir e c t mandate throughout the elem entary sch o o ls o f the cou n try. A lthough Flanders found th a t ample la titu d e was allow ed fo r educators and 56 lo c a l communities to s e le c t the su b d iv isio n s which were to be in clu d ed in given s u b je c ts , he was im p elled to observe th a t, in the face o f the growing number o f l e g i s la t iv e p r e s c r ip tio n s , le g is la t o r s were pursuing a course w hich, i f p e r s is te d in , would e v e n tu a lly deprive p u p ils o f the advantages o f p r o fe s s io n a l lea d ersh ip in the f i e l d o f curriculum (3 ). With re feren ce to the same problem— i . e . , the p o s s ib ili t y o f a d im in ish in g r o le for educators in cur riculum developm ent—Blome in 1939 concluded on the b a s is o f c o lle c te d data th a t d e c isio n s p e rta in in g to cou rses o f study were too o fte n dominated by laymen and th a t tea ch ers and oth er p r o fe ssio n a l educators were not given the prominent r o le they should have in making the cu rr icu lum (1 4 4 ). A study by Shaner a t the U n iv ersity o f P ittsb u rg h in 1942 brought F lan ders' study up to date and added an in q u iry in to the in flu e n c e o f p ressu re groups on the curriculum (1 6 5 ). In 1944, F le tc h e r , in a d is s e r ta tio n on "The Role o f the S ta te in the A dm in istration o f Elem entary Educa tio n " rev ea led th a t among fo r ty -e ig h t s t a t e s , a t o t a l o f approxim ately 1,000 mandatory p r e s c r ip tio n s d ea lin g w ith 57 su b je c ts or a c t i v i t i e s were req u ired in the va rio u s s t a t e s in the elem entary sch o o l curriculum (1 5 2 ). P lisch k e in 1954 brought both the Flanders and Shaner s tu d ie s up to d a te. He c a lle d a tte n tio n to the trend toward g rea ter l e g i s l a t i v e c o n tr o l o f curriculum , as rep orted by Flanders and by Shaner, and p oin ted out th a t i t had continued w ithout dim inution through 1950. He d id fin d , however, a s lig h t trend toward d e le g a tio n o f some powers in curriculum to p r o fe s s s io n a l a g e n c ie s. In harmony w ith the view s o f oth er a u th o rs, P lisch k e d eclared th a t the number o f curriculum p r e s c r ip tio n s was so la rg e and the trend toward in cr ea se so obvious th a t many s t a t e s were th reaten ed w ith making the elem entary curriculum so in f le x ib le and so l e g i s l a t i v e l y r ig id th a t opportu nity fo r exp erim en tation and improvement would be endangered in the fu tu re (1 6 1 ). Some resea rch ers have d e a lt w ith l e g is l a t i v e r e quirem ents in the elem entary sch o o l curriculum , w h ile oth ers have d e a lt w ith s im ila r requirem ents a t the secon dary le v e l. T roxel in 1928 (1 9 ), Van Den Brink in 1939 (1 6 8 ), and Gish in 1940 (153) were concerned over the problem as i t a ffe c te d the secondary sc h o o ls . In g e n e r a l, th e ir fin d in g s were much the same as th ose o f resea rch ers 58 o f the elem entary curriculum concerning the v a r ie ty o f le g a l p r e sc r ip tio n s a ffe c tin g the secondary curriculum . One d iffe r e n c e i s worthy o f n ote: there have been far fewer le g a l p r e sc r ip tio n s concerning the secondary sch o o l curriculum than fo r the elem entary sch ool curriculum . Legal p r escrip tio n s a ffe c tin g s p e c if ic su b ject m atter were o f concern to S alisb u ry who com pleted a doc to r a l study o f "The Legal P rovision s for H ealth Education" a t Washington U n iv ersity in 1920 (1 6 3 ). An in te r e s tin g study by Towle in 1933 had as one o f i t s purposes the d iscovery o f the r e la tio n s h ip between the ex ten t o f s ta te c o n tro l over curriculum and the educa tio n a l standards o f the s t a t e s , in clu d in g the D is t r ic t o f Columbia. Two system s fo r determ ining the ed u ca tio n a l standards o f the s t a te s were employed: (1) referen ce to A yres1 An Index Number fo r S ta te School System s, and (2) referen ce to P h illip s ' "Educational Rank o f S ta te s , 1930." The rank-order method o f c o r r e la tio n was u sed . Among the fin d in g s were the fo llo w in g : Twelve per cen t or s i x s ta te s . . . show a d e f in ite c o r r e la tio n between curriculum c o n tro l and ed u ca tio n a l sta n d in g s. The degree o f variance i s from 45 to 0 . This was found in the D is t r ic t o f Columbia and New M exico, r e s p e c tiv e ly . < _____ ............................................................. ..................... _ J 59 The rank-order method o f co r r e c tio n showed th e c o r r e la tio n to be + .1 0 5 . These two fin d in g s m ight lead to the co n clu sio n th at as y e t the law makers are n e ith e r improving nor reta rd in g the p u b lic sc h o o ls . The laws appear to be s u f f ic ie n t ly gen eral fo r a sch o o l e ith e r to go ahead or f a l l behind reg a rd less o f the number o f enactm ents passed by the le g is la t u r e p rescr ib ing i t s curriculum . At the p resen t tim e, th ere i s uo reason fo r educators to become alarmed over th e curriculum s p e c ific a tio n s made by s t a te l e g i s l a tu r e s . However, more work should be done in the f ie l d b efore too d e f in ite con clu sio n s are drawn, and the p resen t ones should be used w ith extreme ca u tio n . (167:74) L it t le c o r r e la tio n was found between the number o f l e g i s la t iv e p r e sc r ip tio n s concerning curriculum and the educa tio n a l standards o f the s ta te (1 6 7 ). An o v e r -a ll resume o f sta tu s s tu d ie s r e v e a ls a growing number o f le g i s l a t i v e p r e sc r ip tio n s d ea lin g w ith th e curriculum o f the p u b lic sc h o o ls . I f educators f e e l pressured by the in cr ea sin g amount and s p e c i f i c i t y o f sch o o l c u rr icu la r law , i t may be exp lain ed in part by a fa c t noted by Lubbers in 1946 th a t throughout the n a tio n during the h a lf-c e n tu ry from 1890 to 1943, only 268 sch o o l laws were rep ealed (1 5 7 ). Small wonder th a t w ith the con stan t a d d itio n o f new sch o o l laws and the fa ilu r e to rep ea l th ose th a t are outdated or superseded, sc h o o l ad m in istrators have experienced d if f ic u lt y in f a m ilia r iz 60 in g them selves and th e ir c o lle a g u e s , and in com plying w ith a l l le g a l p r e s c r ip tio n s . Reasons fo r curriculum l e g i s l a t i o n . As w ith oth er kinds o f l e g is la t io n , laws a f fe c t in g curriculum should r e f l e c t the major o b je c tiv e s th a t the people o f the s ta te hold fo r t h e ir p u b lic sc h o o ls . I t should g iv e form to the th in g s th a t people want the sch o o ls to accom plish. Curriculum le g is la t io n becomes o p era tiv e through the enactment o f laws by the s ta te le g is la t u r e , but whether th ese laws a c tu a lly rep resen t the c o lle c t iv e w i l l o f the people o f the s t a te appears to be open to q u e stio n . The e f f e c t s o f the a c t i v i t i e s o f p ressure groups on curriculum le g is la t io n have been a llu d ed to in e a r lie r s e c tio n s in t h is review o f lit e r a t u r e . Hamilton has sa id : I t i s to be exp ected th a t an in crea se in l e g i s la t iv e p r e s c r ip tio n s in regard to the curriculum w i l l occur to the response o f the demands o f popular sentim ent or a t the in s is te n c e o f w e ll-o r g a n iz e d and pow erful groups o f c i t iz e n s . Such attem pts are b ein g made in a l l the s t a t e s . (8:158) I t i s im portant fo r ed u cato rs to reco g n ize th a t a c t i v i t i e s o f pressure groups as w e ll as p u b lic sentim ent r e f l e c t the ten or o f the tim es, and are o fte n s ig n if ic a n t causes o f ed u ca tio n a l l e g is la t io n . Educators in each s t a te must look to th e ir own l e g i s l a t i v e and ed u ca tio n a l str u c tu r e s to determ ine who e s ta b lis h e s minimum c u r r ic u la r requ irem en ts. Cox and Ramer in a 1961 study cou ld fin d no c le a r p a ttern o f pro cedures throughout the U nited S ta te s fo r the e s ta b lis h ment o f minimum c u r r ic u la r requirem ents (5 4 ). I t may reasonably be concluded th a t educators must g e n e r a lly look o u tsid e t h e ir own p r o fe ssio n fo r the fo r c e s which d e te r mine what they are req u ired to do in th e classroom s. J u d ic ia l c o n tr o l o f curriculum . Although the le g is la t u r e s make the law s, the co u rts in te r p r e t them; th e r e fo r e , the cou rts are freq u en tly th e a c tu a l d eter m iners o f what takes p la ce in the classroom . S everal resea rch ers have stu d ie d th e j u d ic ia l c o n tr o l o f c u r r ic ulum. In 1958, Musmanno in v e s tig a te d the le g a l p r in c i p le s and is s u e s in v o lv ed in l i t i g a t i o n p erta in in g to the curriculum o f the p u b lic sc h o o ls and was ab le to id e n tify s i x p r in c ip le s o f law th a t were in v o lv ed : (1) s ta te a u th o r ity , (2) lo c a l sc h o o l d i s t r i c t a u th o r ity , (3) a u th o rity o f lo c a l sch o o l o f f i c i a l s or te a c h e r s, (4) the r ig h ts o f p a ren ts, (5) the r ig h ts o f c it iz e n s and ta x p ayers, and (6) fe d e r a l a u th o r ity or j u r is d ic t io n (1 5 9 ). 62 Punke a ls o stu d ie d th e e f f e c t o f court r u lin g s on the curriculum and found t h a t , even though parents were granted some r ig h ts to determ ine what t h e ir ch ild re n should stu d y , when a p a r tic u la r su b jec t was req u ired by s t a t e law , th e c h ild was req u ired to pursue i t (2 7 ). A summary o f le g a l p r in c ip le s w hich guide the cou rts in t h e ir th in k in g when a d ju d ica tin g ca ses d ea lin g w ith p u b lic sch o o l curriculum appeared in an a r t i c l e by F e r r ie r , ’’J u d ic ia l C ontrol o f the School Program,” in The Yearbook o f School Law. 1956. So c le a r ly and su c c in c t ly are th e p r in c ip le s s ta te d in t h is a r t i c l e th a t they are quoted here in f u l l : 1. The esta b lish m en t and m aintenance o f a system o f p u b lic sc h o o ls i s an in d isp en sa b le o b lig a tio n and fu n ctio n o f the s t a t e . 2. The program o f th e p u b lic sc h o o ls i s n ot lim it e d to th e common branches o f study and should be so m aintained a s to keep ab rea st w ith progress g e n e r a lly and to m eet the needs o f the tim e. 3. Courses o f study p rescrib ed by s ta tu te must be ta u g h t, and the tea ch in g o f such cou rses can n ot be d isco n tin u ed by the a c tio n o f any subordinate agency i f the in te n t o f th e law i s c le a r . 4 . The s t a te has power to req u ire the tea ch in g o f c e r ta in s tu d ie s p la in ly e s s e n t i a l to good c itiz e n s h ip and to p ro h ib it th e tea ch in g o f th a t which i s in im ic a l to th e p u b lic w e lfa r e , even though i t i s taught as a moral and 63 r e lig io u s duty. 5 . The fundamental power to determ ine the system o f ed u cation and th e course o f study i s in th e le g is la t u r e . 6. The s t a t e ' s power over ed u ca tio n , in clu d in g the program o f s t u d ie s , i s p len a ry , su b jec t on ly to c o n s t it u t io n a l lim it a tio n . 7. The s ta te may d ele g a te t h is power to p rescrib e cou rses o f study to su bordinate agen ts or a g e n c ie s , su b je c t to r e c a ll a t the p lea su re o f th e s t a t e . 8. A sc h o o l b oard 's power to c o n tr o l the program o f s tu d ie s i s u n q u a lifie d and u n lim ite d , and th e board may in clu d e w hatever su b jec t i t se e s f i t u n le ss r e str a in e d by the s ta tu te s and the c o n s t it u t io n . 9 . Although a course o f study i s p rescrib ed by a h ig h er a u th o r ity , some d is c r e tio n i s v e s te d in a board as to the ch a ra cter o f the course o f study and th e methods by which i t s h a ll be ta u g h t. 10. A board o f ed u cation may in clu d e "extra c la s s " a c t i v i t i e s as a part o f i t s ed u ca tio n a l program supported by ta x m onies. 11. S chool boards have broad a u th o r ity to ch oose, and provide from ta x m onies, such equipm ent, s u p p lie s , and m a te r ia ls a s are n ecessa ry to implement th e program and o ffe r in g s . 12. In the absence o f s ta tu to r y p r o v isio n , a parent may make a reason ab le s e le c t io n fo r t h is c h ild , from the p rescrib ed cou rses o f stu d y . 13. A sc h o o l board cannot employ i t s power to en fo rce r e lig io u s w orship even in the f a it h o f th e parents o f the c h ild . j 64 14. The d eterm in ation o f what s tu d ie s are immoral or dangerous i s p rim arily fo r a board o f educa t io n . 15. Teacher tenure laws do n ot d islo d g e or r e s t r i c t th e g en era l a u th o r ity o f sc h o o l d ir e c to r s and su p erin ten d en ts to meet changing c o n d itio n s through the dropping o f c o u r se s, the c r e a tio n o f new c o u r se s, th e reassignm ent o f te a c h e r s, and the rearrangement o f the curriculum . 16. "Teaching" r e fe r s to g en era l in s tr u c tio n w ith in th e f ie ld s embraced by a te a c h e r 's c e r t i f i c a t e , in clu d in g a l l in c id e n ts and su b d iv isio n s th e r e o f. 17. P r o fe s s io n a lly tra in ed te a c h e r s, p r in c ip a ls , and su p erin ten d en ts should have e x c lu s iv e con t r o l over methods o f in s tr u c tio n and d is c ip lin e . 18. School boards have le g a l sa n ctio n to u t i l i z e community reso u rces to fu r th er the o b je c tiv e s o f the program o f ed u ca tio n . 19. The people have a r ig h t to have s t a tu t e s p er ta in in g to the program o f s tu d ie s construed l ib e r a lly . 20. The p aren t, and e s p e c ia lly the fa th e r , i s v e s t ed w ith supreme c o n tr o l over the c h ild , in clu d in g h is ed u ca tio n , excep t where m od ified by s t a tu t e . 21. Although a parent has the r ig h t to make a reason ab le s e le c t io n from th e p rescrib ed cou rses o f stu d y , h is s e le c t io n must not be a r b itr a r y . 22. The B ib le , in any v e r s io n , i s not a s e c ta r ia n book, and can be read w ithout comment in the sc h o o ls to in c u lc a te fundamental m o ra lity u n le ss forbidden by s t a te or lo c a l a u th o r ity , g e n e r a lly . 65 23. S ecta ria n or p a rtisa n in str u c tio n has no p lace in the program o f the p u b lic sc h o o ls. 24. A sa lu te to the fla g and oath o f a lle g ia n c e cannot be mandated in the p u b lic sc h o o ls. 25. Subversive and un-American teach in g i s u nlaw ful. (172:106) The e f f e c t o f th ese le g a l p r in c ip le s on the cu rricu lum has been d iscu ssed by Hamilton who s ta te s : The trend o f the d e c isio n s o f the cou rts is good grounds for concluding th a t the se v e r a l cou rts w i l l continue the tendency shown in the p ast; th a t they w i l l continue to favor the ex ten sio n o f a p u b lic sch ool curriculum o f se cu la r su b jec ts and curriculum u n its which w i l l meet the needs o f the c h ild as a p ro g ressiv e c i v i l i z a t i o n r e v e a ls them; th a t they w i ll continue to guard the curriculum a g a in st the in c lu s io n o f p r a c tic e s th a t may have a tendency to d iso rg a n ize and in ju re the sc h o o ls; that they w i l l continue to recogn ize the r ig h t o f the c h ild to an education; th a t they w i l l continue to safeguard the p u b lic in regard to the expense in cid en t to the p u b lic sch o o l system w h ile favorin g proper in str u c tio n a l equipment and o p p o rtu n ities for the p u p ils; th a t they w i l l continue to hold th a t the p ub lic or common sch o o ls must be fr e e , open eq u ally to a l l , and under com plete p u b lic c o n tr o l. (8:157) From th ese a n a ly ses o f the problem, i t would appear th a t the cou rts have dem onstrated wisdom and th a t, by pursuing a course o f lib e r a l in te r p r e ta tio n o f curriculum le g is la t io n , the cou rts have tended not to co n tro l the curriculum but to make i t p o ssib le fo r sch o o ls to meet the demands o f a newer age. 66 Local c o n tro l o f curriculum . I t was p ointed out in an e a r lie r s e c tio n o f the chapter th a t the powers o f lo c a l boards o f education are not in h eren t, but are d e le gated to them by the s ta te le g is la t u r e . This i s tru e w ith resp ect to the curriculum , as w e ll as other a rea s. T herefore, what a lo c a l sch o o l d i s t r i c t may decide to do in the f i e l d o f curriculum is determ ined by the ex ten t and s p e c if i c it y o f s ta te curriculum le g is la t io n . Gordy remarks: That there should be a c e r ta in amount o f s ta te re g u la tio n and ad m in istration o f the p u b lic sc h o o ls , a l l a g ree. But to j u s t what ex ten t t h is r e g u la tio n should proceed, there i s con troversy. (154:2) Most a u th o r itie s would agree th a t, in s p ite o f e x is tin g curriculum law, there i s opportunity fo r the lo c a l sch o o l d is t r ic t to determ ine the content o f the ed u ca tio n a l pro gram. An Iowa co u rt, in S ecu rity N ational Bank o f Mason C ity v . Bagley (4 6 ), and Wright (29) have both supported t h is view . Hamilton, to o , m aintains: C ontrol o f the curriculum by lo c a l boards . . . r e s ts upon a d iffe r e n t con cept. Their powers are granted and must be e x e r c ise d w ith in the bounds o f the gran t. They are fu rth er r e s t r ic te d by any exp ress le g is la t io n r e la tin g to the curriculum . I t i s obvious that th e lo c a l boards may n ot v io la t e mandates o f the agency which crea ted the boards. However, grants o f power to lo c a l a gen cies are in broad terms and i t becomes a q u estion fo r the 67 determ ination o f the cou rts as to how fa r the lo c a l ag en cies may go in determ ining the curriculum o f the sch o o ls in th e ir charge. (9:94) I t has been observed th a t the cou rts have been lib e r a l in th e ir in te r p r e ta tio n o f curriculum s ta tu te s . Their d e c isio n s have enabled lo c a l sch ool a gen cies to operate w ith a great d eal o f freedom in determ ining cur riculum . Hamilton n o te s: "Indeed, ca ses lim itin g the lo c a l agen cy's power over curriculum are so rare' th at they need not be con sid ered here" (9 :9 5 ). A reasonable co n clu sio n may be reached th a t the curriculum o f the p u b lic sc h o o ls , although p rim arily the r e s p o n s ib ility o f the s ta te le g is la t u r e s , i s e ffe c te d by many a g en cies in clu d in g the fe d e r a l government, the c o u r ts, and lo c a l boards o f ed u cation . Although the number and s p e c if i c it y o f le g a l requirem ents a ffe c tin g curriculum have in creased markedly in recen t y e a r s, and although there would appear to be a fea r on the part o f educators th a t they have r e la t iv e ly l i t t l e freedom l e f t w ith resp ect to development o f the curriculum , the Encyclopedia o f E ducational Research in 1960 sta te d : Local i n i t i a t i v e and co n tro l in education depend more on tr a d itio n and p r a c tic e than upon the charac te r o f s t a te s ta tu te s and r e g u la tio n s. Everywhere there i s le g a l leeway fo r much more d iv e r s ity in lo c a l ed u ca tio n a l programs than now e x i s t s . The 68 d e c isio n s o f the lo c a l sch ool about what to teach are r e la te d more to c o lle g e entrance requirem ents, textbooks u sed , a c c r e d ita tio n , p aren tal demands, and p r o fe ssio n a l op inion than to le g a l requirem ents o f the s t a t e s . (10:1385) C a lifo rn ia The c o n s titu tio n o f the s ta te o f C a lifo rn ia con ta in s only one se c tio n which may be construed as a ffe c tin g the curriculum o f the p u b lic sc h o o ls. That i s A r tic le IX, S ectio n 8 , which s t a te s : No p u b lic money s h a ll ever be appropriated fo r the support o f any se c ta r ia n or denom inational sc h o o l, or any sch o o l not under the e x c lu siv e co n tro l o f the o f f ic e r s o f the p u b lic sch o o ls; nor s h a ll any se c ta r ia n or denom inational d octrin e be ta u g h t, or in s tr u c tio n thereon be p erm itted, d ir e c tly or in d ir e c t ly , in any o f the common sch o o ls o f t h is s t a t e . (92) A monumental study d ea lin g w ith le g a l requirem ents concerning curriculum in C a lifo rn ia was com pleted by Bagley and Kyte in 1926 ( 1 ). The stu d y, e n t it le d The C a lifo rn ia Curriculum Study, d e a lt w ith le g a l requirem ents a ffe c tin g the elem entary sch ool curriculum in the s ta te from 1851 through 1925. During the period through 1921, a t o t a l o f 53 le g a l requirem ents were en acted , only 22 o f which were withdrawn. The 1923 s e s s io n o f the s ta te l e g i s la tu re added one more so th a t a t o t a l o f 32 p r e sc r ip tio n s a ffe c tin g the elem entary sch ool curriculum was then 69 in e f f e c t in C a lifo r n ia , a much g r e a te r number than e x is te d in any o th er s t a t e , and more than tw ice as many as the average number in the s t a t e s o f the n a tio n . I t i s in te r e s tin g to n ote th a t on ly f iv e o f th ese su b je c ts su r v iv ed from 1851 to the p resen t day. They are a r ith m e tic , geography, rea d in g , s p e llin g , and w r itin g . Bagley and Kyte made s e v e r a l in te r e s tin g observa t io n s , one b ein g th a t th e h is to r y o f le g a l requirem ents a f f e c t in g C a lifo r n ia 's elem entary curriculum has been marked by d e f in it e c y c le s o f l e g i s l a t i v e a c t i v i t y . These c y c le s have been approxim ately s ix te e n years in d uration and have fo llo w ed one another w ith g rea t r e g u la r ity , excep t fo r two p eriod s o f extreme war c r i s i s — the C iv il War, and World War I . They n oted th a t the years 1851, 1866, 1887, 1901, and 1917 were the b egin ning or culm inat in g years o f the c y c le s . I f t h is c y c le s t i l l c o n tin u e s, the n ext c r i t i c a l year should be 1965. Judging from l e g i s la t iv e curriculum a c t i v i t y a t the 1961 s e s s io n o f the C a lifo rn ia S ta te L e g is la tu r e , i t may w e ll be th a t the s ix te e n -y e a r c y c le does s t i l l con tin u e and th a t 1965 may mark the cu lm in ation or b egin n in g o f a p eriod o f in te n s iv e le g i s l a t i v e a c t iv it y in curriculum . In 1925, th e 32 le g a l , requirem ents a f f e c t in g the elem entary sch o o l curriculum 70 were reduced to tw e lv e, many o f the p revious requirem ents b ein g im p lied in th ose th a t remained. Since th a t tim e, two more were added, so th a t a t the p resen t w r itin g , fo u rteen such requirem ents remain in e f f e c t . B agley and Kyte made another im portant p o in t con cern in g the involvem ent o f p r o fe s s io n a l educators in curriculum d e c isio n s made by le g is la t u r e s : Only tw ice has the ad vice o f th ose who are probably b e st equipped to g iv e ad vice regarding curriculum requirem ents been sought and fo llo w ed — namely in the i n i t i a l le g is la t io n o f 1851 and during the p a st year [1 9 2 5 ]. This fa c t r e fu te s a common b e l i e f th a t the p r o fe ssio n i s to blame fo r th e co n g estio n o f the curriculum or fo r in clu d in g the s o - c a lle d "fads and f r i l l s . " (1:16) With re sp e c t to the r o le o f p r o fe s s io n a l educators as a d v iso rs to the s t a t e le g is la t u r e on curriculum m a tters, the authors s ta te d fu rth er: "From th a t date [1851] to very recen t tim es the ad v ice o f the educators was very r a r e ly sought and even more r a r e ly follow ed " (1 :4 2 ). The authors a ls o rep eated what many oth er a u th o r i t i e s have contended—nam ely, th a t many le g a l requirem ents a f f e c t in g curriculum are the r e s u lt o f organ ized p ressure groups and do not n e c e s s a r ily rep resen t e ith e r the d e s ir e s o f th e people o f the s t a t e as a whole or the b e st th in k in g o f the ed u cation p r o fe ssio n concerning curriculum 71 I t s broad scope and thoroughness o f research make the Bagley and Kyte study an ou tstan din g co n trib u tio n to the su b ject o f le g a l requirem ents a ffe c tin g elem entary sch o o l curriculum in C a lifo r n ia . I t examines the fa c ts and s ta te s c le a r ly a p r o fe ssio n a l p oin t o f view regarding su b ject-m a tter requirem ents imposed by the s ta te l e g i s la tu r e . The au th ors' gen eral co n clu sio n s and guiding philosophy were summarized in th ese paragraphs: The stu d ie s . . . show c le a r ly th a t the cu rricu lum w ishes o f the gen eral p u b lic are fa r from being in agreement w ith many o f the d e sir e s expressed by . . . organized m in o r itie s . There i s , th e r e fo r e , an apparent need for ex p ressin g the law in such terms as w i l l provide for an elem entary sch o o l curriculum : (1) m eeting the demands o f the g en eral p u b lic; (2) co n ta in in g c e r ta in oth er edu c a tio n a lly and s o c ia lly sound m a te r ia ls , advocated by c e r ta in organized m in o r itie s , which can be made e f f e c t iv e ed u ca tio n a lly w ithout crowding out oth er e s s e n t ia l su b je c ts; and (3) agreein g w ith the b e st ed u cation al thought and the fin d in g s o f s c i e n t i f i c in v e s tig a tio n s . In the h isto r y o f American education we fin d th a t the s t a te has always m aintained the le g a l r ig h t to determ ine what p o lic ie s and requirem ents s h a ll govern the p u b lic sch o o l system . This p r in c ip le o f democracy'has been e x e r c ise d to the ex ten t o f determ ining what s h a ll or s h a ll not be tau gh t. In carrying out t h is p o lic y the le g is la t o r s have not in fr eq u e n tly overlooked a p r in c ip le which op erates in the in te r e s t o f p u b lic w elfa r e—namely, th a t the expert b e st prepared to g iv e a s s is ta n c e to h is fello w s s h a ll be c a lle d upon fo r a d v ice. In 1851 the C a lifo rn ia le g is la t o r s w ise ly sought such a id in making i t s f i r s t curriculum law s. The 72 members o f the 1925 le g is la t u r e made an admirable e f f o r t to em ulate them in t h is r e s p e c t. M ay we not exp ect th a t a s ta te so p ro g ressiv e in m atters o f ed u cation w i l l take the forward ste p in the near future o f b rin gin g to g eth er r e p r e se n ta tiv e s o f the people as a whole and r e p r e se n ta tiv e s o f the ed u ca tio n a l p r o fe ssio n fo r the purpose o f determ ining more s a t is f a c t o r ily the curriculum requirem ents to be p rescrib ed by law? (1:56-57) In 1951, Doss stu d ie d ten d en cies toward c e n tr a liz a tio n o f co n tro l in ed u ca tio n a l a d m in istra tio n in C a lifo rn ia from 1900 to 1950 and reported th a t the number o f l e g i s l a t iv e p ro v isio n s concerned w ith curriculum p o lic y had in creased from th ir te e n in 1899 to 95 in 1949; i t was con cluded th a t there was a ra p id ly expanding tendency fo r s t a te c o n tr o l o f minimum e s s e n t ia ls . In comparing the Doss fin d in g s w ith th ose o f Bagley and K yte, i t must be remembered th a t the former d e a lt w ith curriculum re q u ir e ments a t a l l le v e ls o f ed u ca tio n , not ju s t those a t the elem entary le v e l (1 4 9 ). Although the gen eral p ictu re o f growth in the number o f le g a l p r e sc r ip tio n s concerning curriculum may appear to be one o f con stan t and u nb rid led expansion, Crossan in 1955 showed th a t i t cou ld have been w orse. He rep orted th a t, o f a l l su b ject m atter p r e sc r ip tio n s proposed to the le g is la t u r e between 1941 and 1953 in C a lifo r n ia , only 2 1 .2 per cen t a c tu a lly became law (1 4 7 ). 73 To most C a lifo rn ia sch o o l a d m in istra to rs concerned w ith m atters o f curriculum , the 1961 s e s s io n o f the s t a te le g is la t u r e appeared to mark the b egin n in g o f a trend toward more l e g i s l a t i v e p r e s c r ip tio n . In a speech b efo re th e opening o f th is s e s s io n , Dr. Roy £ . Simpson, S ta te Superintendent o f P u b lic I n s tr u c tio n , sa id : The 1961 le g is la t u r e . . . w i l l fa ce educa t io n a l p rop osals o f unusual magnitude and which have firm support. . . . These w i l l be days o f d e c isio n fo r p u b lic ed u cation in t h is s t a t e . These d ays, however, c o n s titu te only the b e gin ning o f a p eriod in which c r u c ia l d e c isio n s must be made regarding C a lifo r n ia sc h o o ls . . . . This tim e o f change i s j u s t b egin n in g . . . (6 8:1). Much o f the curriculum le g is la t io n enacted by the 1961 s e s s io n o f th e le g is la t u r e came about as a r e s u lt o f th e report o f the C itiz e n s A dvisory Commission im paneled e a r lie r by a j o in t le g is la t u r e in terim com m ittee. The in n er workings o f t h is committee and i t s apparent d is regard fo r th e ad vice and co u n sel o f p r o fe s s io n a l edu c a to r s has been reported by Thompson and Snowden who were members o f th e com m ittee. Their comments in d ic a te th a t th e le g is la t o r s were u n w illin g to r e sp e c t the ad vice o f the p r o fe ssio n (a p o in t th a t had been made e a r lie r by Bagley and K y te), and th a t t h is s it u a tio n s t i l l e x is t s 74 (71). H all and McDermon (59) and Simpson (69) l i s t the fo llo w in g changes made in the curriculum law during the 1961 s e s s io n : 1. A d d itio n o f E n g lish and a fo r e ig n language to the elem entary sc h o o l. 2. A d d ition o f n a tu ra l h is to r y or sc ie n c e to the elem entary sc h o o l. 3. D e le tio n o f the requirem ent o f tr a in in g in h e a lth fu l liv i n g , and the s p e c ific a t io n th a t c iv ic s s h a ll in clu d e the D ecla ra tio n o f Independence and the C o n stitu tio n o f the U nited S ta te s . 4 . Requirement o f four years o f E n glish fo r the secondary s c h o o l, in clu d in g a b a s ic course o f read in g. 5. Four years o f h is t o r y , in clu d in g American h is to r y , w orld h is t o r y , h is to r y o f world c i v i l i z a t i o n s , and one year o f American government. 6. A sta te -w id e t e s t in g program. 7. Requirement o f p a t r io t ic e x e r c is e s in a l l elem entary and secondary sc h o o ls. O n the su r fa c e , th ese a d d itio n a l requirem ents may appear to be rea so n a b le. However, some o f them have been : shown to co n ta in r a m ific a tio n s fa r beyond t h e ir p la c id 75 s u r fa c e . When they were b ein g con sid ered by the l e g i s l a tu r e , p r o fe ssio n a l educators attem pted to a d v ise and guide the le g is la t u r e to an understanding o f c e r ta in o f th e se r a m ific a tio n s . O n the w hole, th e ir p r o fe s s io n a l a d v ice was ignored and Dr. Simpson was im p elled to s t a te p u b lic ly : As we view a l l a c tio n s o f the 1961 l e g i s l a t iv e s e s s io n , i t was n ot a f r u i t f u l year fo r ed u ca tio n . I b e lie v e th a t i f we are to succeed in our l e g i s la t iv e g o a ls , th ere must be more coop eration among the va rio u s o rg a n iza tio n s rep resen tin g s p e c ia l ed u ca tio n a l in t e r e s t s . (69:17) Like t h e ir c o lle a g u e s throughout the n a tio n , C a lifo rn ia educators p erceiv e th a t they must accep t and r e sp e c t the fa c t th a t the s t a te le g is la t u r e has com plete c o n tr o l o f the sch o o ls o f the s t a t e . They are a ls o aware th a t curriculum laws are a proper e x e r c is e o f the l e g i s la t iv e fu n ctio n . They b e lie v e th a t curriculum l e g i s l a t io n should rep resen t the w i l l o f the people o f the s t a te o f C a lifo rn ia as a w hole, and r e g re t th a t such l e g i s l a tio n i s freq u en tly the ex p ressio n on ly o f the w i l l o f organized and in te r e s te d p ressure groups. For th ese re a so n s, th ere has been a g rea t d ea l o f study conducted s in c e the 1961 s e s s io n o f the le g is la t u r e to determ ine what fo rces brought about the curriculum p r e s c r ip tio n s enacted a t th a t s e s s io n . Commenting on the 1961 s e s s io n , Smith and B ix le r reported th a t in th e ir o p in io n , con s e r v a tiv e and rea ctio n a ry id ea s and assum ptions about ed u cation had become the major fa c to r s shaping changes in C a lifo rn ia sch o o l curriculum and p r a c tic e . They ex p ressed concern over the tendency toward ed u ca tio n a l le g is la t io n d esign ed fo r s p e c if ic c o n tr o l, and sta te d th a t they b e lie v e d th a t the i n i t i a t i v e fo r ed u ca tio n a l improvement had passed from the p r o fe s s io n a ls and the e le c te d sch o o l boards to a m u lt ip lic it y o f s p e c ia l in t e r e s t groups. They viewed the 1961 curriculum le g is la t io n as re a ctio n a ry or o v e r ly -c o n se r v a tiv e , and s ta te d : "Conservative gain s were a ls o made in oth er d ir e c tio n s when a . . . sta te -w id e sch o o l t e s t in g program was adopted" (7 0 :1 5 ). One year la t e r , in October 1962, B ix le r w rote an a r t i c l e fo r the C a lifo rn ia Journal fo r I n s tr u c tio n a l Improvement, "School C r itic s In flu en ce upon C a lifo r n ia L e g is la tio n ," in which he r e s ta te d h is c o n v ic tio n th a t the curriculum le g is la t io n o f the 1961 l e g i s l a t i v e s e s s io n was th e r e s u lt o f co n serv a tiv e and rea ctio n a ry in flu e n c e s: One can tra ce a path from Chapter I o f the C ouncil fo r B asic E d u cation 's C itiz e n Manual v ia the C itiz e n s A dvisory Commission's f in a l rep ort 77 to the Casey-Bee curriculum b i l l . (51:11) The r e s u lts o f t h is connection between pressure groups and the 1961 le g is la tu r e he d escrib es as fo llo w s: P rev io u sly , maximum lo c a l autonomy was allow ed by n ot s e ttin g p r io r it ie s w ith in the required su b je c ts . The Casey-Bee B i l l ' s required changes r e f l e c t the C ouncil fo r B asic Education em phasis. Local autonomy for e s ta b lis h in g the p r io r ity w ith in the required su b jec ts i s reduced. The code now s p e c if ie s a t what grade le v e l the "basic" su b jec ts must begin: the three R's in the f i r s t grade; E n g lish , geography, and h isto r y in the fourth grade; and c iv ic s and fo reig n language in the s ix t h grade. . . . Thus, the hierarchy i s e s ta b lish e d c le a r ly and w i ll be m aintained by C a lifo rn ia s ta tu te ; le g is la t iv e a c tio n would be required to modify i t . (51:11) Whether or not the fo rces which brought about the changes in curriculum law in the 1961 se s s io n o f the s ta te le g is la t u r e were the ones B ix le r thought they w ere, the g en eral consensus o f educators in C a lifo rn ia was th a t powerful reaction ary fo rces were a t work, and th a t the 1961 se s s io n represented a m ileston e or perhaps a turning p oint in education in th is s t a t e . The ex ten t o f the change may soon be known, Smith and B ix le r b e lie v e : W e should know by the c lo s e o f the 1963 l e g i s la t iv e s e s s io n whether the s t a t e 's education system w ill recover i t s impetus and continue i t s th ru st o f the p ast two decades or whether i t s b a sic d ir e c tio n and o r ie n ta tio n w i l l be reversed . (70:14) 78 Curriculum L e g is la tio n and the Educator The con clud in g s e c tio n o f t h is review o f lit e r a t u r e co n sid ers the apparent view p oin t o f p r o fe s s io n a l educators toward curriculum le g is la t io n . The key to the p o in t o f view o f C a lifo r n ia educators i s g iv en in a statem ent by Blome: "Educators do n ot q u estio n the r ig h t o f the s t a te to determ ine what s h a ll be ta u g h t, but they do q u estio n the e x ten t to which the s t a te should e x e r c is e th a t r ig h t" (1 4 4 ). An understanding o f th e ed u ca to rs' b e l ie f s about curriculum le g is la t io n may be had from a co n sid er a tio n o f th e ir b a s ic concept o f the curriculum i t s e l f . In the many volumes w r itte n about curriculum one p r in c ip le stands out above a l l o th e r s , and most educators su b scrib e to i t . I t i s the b e l i e f th a t, because c h ild re n are d iffe r e n t from one an oth er, the curriculum must be f le x ib le enough to meet th o se d iffe r e n c e s . G en era lly , educators b e lie v e th a t the sc h o o ls o f America have an o b lig a tio n to provide every c h ild w ith the amount and kind o f ed u cation th a t w i l l b e st f i t each one fo r a p rod uctive l i f e as an a d u lt American c i t i z e n . For th a t rea so n , they view w ith g rea t concern any attem pt to in j e c t r i g id i t y or a narrow p o in t o f view in to the curriculum . Many ed u ca tio n a l a s s o c ia tio n s and in d iv id u a l authors have made th a t p o in t. For exam ple, the Commission on E d u cation al P o licy o f the C a lifo rn ia T eachers1 A sso c ia tio n has sa id : The m ajority o f stu d en ts serv ed by the p u b lic sc h o o ls do not go to the u n iv e r s ity . These in d i v id u a ls exp ect education to be u s e fu l in th e ir own l i v e s , and th ese liv e s are e s s e n t ia l to th e econom ic, c u ltu r a l, and s p ir i t u a l h e a lth o f our n a tio n as are those o f the c o lle g e group. Both groups make up the c itiz e n r y o f our g reat n a tio n . (23:4) Fraser and P ullen say: I t seems a reasonable co n clu sio n th a t sch o o ls in d iffe r e n t communities w ith d iffe r e n t stud en t b od ies must answer both th e q u e stio n o f in c lu s io n - e x c lu sio n and that o f p r io r it i e s and balance according to the needs o f th e immediate s it u a t io n . (57:36) A statem ent o f b e lie f s by the N a tio n a l C ouncil o f S ta te C onsultants in Elementary E ducation in clu d es th ese p rin c i p l e s : W e b e lie v e that in American elem entary sch o o ls a curriculum concerned only w ith in t e lle c t u a l development i s u n r e a lis t ic and inadequate. Persons resp o n sib le fo r curriculum development m ust, th e r e fo r e , worlj: to a ch iev e balance in the curriculum . Balance i s ach ieved in th e e x te n t to which th e curriculum co n trib u tes to each c h ild what he needs to move toward d e sir e d g o a ls in the optimum way. (63:198) 80 I t i s u n lik e ly th a t educators would f e e l th a t the way to ach ieve t h is f l e x i b i l i t y and balance i s through curriculum le g is la t io n a t the s ta te le v e l. As Towle rem arks: S tan d ard ization i s most e f f e c t iv e when i t c o n tr o ls only c e r ta in minimum requirem ents. As soon as th ere i s c e n tr a liz a tio n in d e t a ils , th ere i s d i f f i c u l t y in enforcem ent and a gen eral r e ta r d a tio n . (167:75) In order to avoid t h is r e ta r d a tio n , Towle su g g ests th at s t a t e s carry on in v e s tig a tio n s and surveys b efo re coming to any co n clu sio n s in curriculum n eed s. Such a procedure would tend to show whether the need was a la s t in g one and whether i t was p e cu lia r to p a r tic u la r l o c a l i t i e s . Hamilton b e lie v e s th a t s t a te le g is la tu r e s should develop a kind o f code o f e th ic s th a t would prevent them from e x e r c is in g th e ir powers in the curriculum to too g rea t an e x te n t. This code should con tain th e fo llo w in g p r in c ip le s : (1) L e g is la tiv e powers having to do w ith broad p u b lic p o lic y should be worked out by the l e g i s l a ture and made a m atter o f law rath er than b ein g d elegated to an a d m in istra tiv e a g en t. (2) Orderly procedures in the lo c a l u n it should be encouraged, not d iscou raged, by the methods used by the le g is la t u r e in e x e r c isin g i t s broad powers. (3) Changes should n ot be made in d e t a il 81 o f ed u cation al stru ctu re w ithout a sse ssin g t h e ir im p lica tio n s for the gen eral str u c tu r a l p a ttern . In summarizing h is p oin t o f view about curriculum le g is la t io n , Hamilton d e c la r e s : . . . The most important elem ent in our str u c tu r a l p attern appears to be the d e le g a tio n o f powers to lo c a l agen ts o f the s t a t e . The rig h t o f a community to embark on new ways o f doing th in gs w ithout too c lo s e o v er sig h t by c e n tr a l a u th o ri t i e s is b e lie v e d to encourage in d iv id u a ls in the sch ool system to do c r e a tiv e thin k ing and experim enting th a t w i l l o c c a sio n a lly r e s u lt in major changes in the conceptual d esign . . . . P r a c tic a lly , we have had a large measure o f home ru le in ed u cation . L egally speaking however, the community has the r ig h t to do only th o se th in gs th a t are required o f i t or are s p e c if ic a lly per m itted i t by law. There are many in d ic a tio n s th a t th is era of freedom i s nearing to a c lo s e . Viewed from i t s long-tim e e f f e c t on ed u cation , t h is tendency i s to be deplored. Those in t e r e ste d in education are faced w ith the problem o f m aintaining the lo o se r in te r p r e ta tio n o f com munity freedom, w ith confidence th a t, in th e long run, cou rts w i l l prove to be adaptable in th e ir v iew p o in t, or w ith a d rive fo r a change in the str u c tu r a l p attern more in keeping w ith th e demands o f a d a p ta b ility . This la t t e r cou ld be achieved by le g a liz in g a la rg er degree o f home ru le in the c o n s titu tio n a l p r o v isio n s, perhaps by e s ta b lis h in g some p r in c ip le comparable to the uniform ity p r in c ip le . . . but applying to the nature o f le g is la t io n . The meat o f i t would be the requirem ent th at no le g is la t io n be r e s t r ic t iv e 82 on lo c a l a c tio n in the area w ith which a law d e a ls . The p ro v isio n should be such th a t a law req u irin g so many m inutes a day to be spent on a g iv en sub j e c t would be d eclared u n c o n s titu tio n a l. (9:565) Such authors as Smith (1 6 6 ), Bolm eier (1 7 1 ), and Carr (53) would agree w ith the view p oin t exp ressed in a b u lle t in o f the N ation al Education A sso c ia tio n which de s c r ib e s what i t co n sid ers to be the d e sir a b le c h a r a c te r is t i c s o f curriculum le g is la t io n : 1. The s t a te le g is la t u r e s should s t a te only major o b je c tiv e s in gen eral term s. Laws should be fundamental and gen eral to in su re a d a p ta b ility . In most c a ses the b a s is o f the law should be the id e a l to be ob tain ed ra th er than the su b jec t to be tau gh t. 2. The s t a te board o f ed u cation in conference w ith and a d v ised by i t s ed u ca tio n a l e x p e r ts , both s ta te and lo c a l, should s e t up, in not too g reat d e t a il, only such c u r r ic u la r a d ju st ments as are deemed a b so lu te ly e s s e n t ia l to the attainm ent o f the major ed u ca tio n a l o b je c tiv e s fix e d by the le g is la t u r e s . (26) B r ie fly s ta te d , the p r o fe ssio n b e lie v e s th a t cu rricu lum le g is la t io n should be broad and g e n e r a l, and th a t curriculum improvement and in n ovation should be allow ed to take p la ce a t the lo c a l le v e l. Many w r ite r s have p oin ted out th a t "curriculum p r e s c r ip tio n s in many sch o o l laws are too d e ta ile d " (64: 134). The r e s u lt o f t h is kind o f d e ta ile d p r e s c r ip tio n : i s d escrib ed by Brown in an a r t ic le e n t it l e d , "Swiss 83 S chools: The Case o f th e Stopped C lo ck ." Speaking of th e te a c h in g o f th e geography o f S w itz e rla n d , he s a id : Sw iss tea ch ers com plain b i t t e r ly th a t the frame work i s kept narrow by s t a te law , which fo rb id s the course to go beyond the boundary o f the m unici p a lit y , s t a t e , or county, excep t when the stu d en t i s in a p a r tic u la r grade. And so i t i s w ith the e n tir e Swiss curriculum , which i s le g is la t e d by law. Changing the curriculum req u ires changing the law, and in the words o f one unhappy te a ch e r , "This i s lik e moving a graveyard." (52:36) Hass d eclared th a t the curriculum must be ab le to m eet changing n eed s. I f the curriculum i s to meet changing n eed s, i t i s obvious th a t the curriculum i t s e l f must be changed (6 0 ). A ccording to F u lle r , curriculum changes must take p lace a t the lo c a l le v e l (5 8 ). This would seem to rep resen t the view o f most educators r e sp o n sib le fo r curriculum developm ent, and ex p la in s t h e ir reasons fo r r e s is t in g the a d d itio n o f more s p e c if ic le g a l p r e sc r ip tio n s in curriculum by s t a te le g is la t u r e s . The r o le o f the p r o fe s s io n a l educator in the form ulation o f such le g is la t io n has been d escrib ed by se v e r a l w r ite r s . The Commission on E ducational P o lic y o f the C a lifo rn ia T eachers' A sso c ia tio n s t a te s : The p r o fe s s io n a l educator does not d ic ta te what s h a ll be taught in the s c h o o ls . . . . The educator has the v i t a l r e s p o n s ib ility o f se rv in g as p r o fe s s io n a l co n su lta n t and ed u ca tio n a l le a d e r . Any p r o fe ssio n would be v ig o r o u sly condemned th a t did 84 not take the p u b lic in to i t s con fid en ce on m atters o f p u b lic concern and turn to the p u b lic w ith pro posed so lu tio n s and recommended cou rses o f a c tio n . The p u b lic i s s t i l l free to accept th e p ro p o sa ls, or r e je c t them, or modify them. The educator must remain free to concur in the d e c isio n or to con tin u e to work toward a b e tte r s o lu tio n and a new course o f a c tio n . To f a i l to propose i s to d e fa u lt in a p r o fe s s io n a l duty. (22:12) Hamilton has sa id much the same thin g ( 8 ). In i t s b u lle t in o f C .A .S.A . P o lic ie s , 1962, th e C a lifo rn ia A sso c ia tio n o f School A dm inistrators s t a te s i t s p o s itio n as fo llo w s: The d eterm in ation o f su b ject m atter req u ire ments fo r the p u b lic sch o o ls i s not properly a le g is la t iv e fu n ctio n and p ast attem pts to le g is la t e the curriculum have r e s u lte d in fragm entation and i n f l e x i b i l i t y . The determ ination o f s p e c if ic o ffe r in g s in th e sch o o ls i s properly a resp o n si b i l i t y o f s t a t e , county, and lo c a l boards o f edu c a tio n . The s e le c t io n and arrangement o f cu rricu la r m a teria ls i s a p r o fe s s io n a l fu n ction and should be d eleg a ted by boards o f education to t h e ir p ro fes s io n a l s t a f f s . (20:111:7) C a lifo rn ia educators may not have had an e f f e c t iv e v o ic e in the development o f curriculum le g is la t io n in the p a st, but i t i s lik e l y th at they w ill make a stron ger e f f o r t to be heard in the fu tu r e . Howardine Hoffman may have p ointed the way in a 1961 statem ent: A new sta te -w id e committee has been organized in C a lifo rn ia to study curriculum m atters su b ject to le g is la t io n . This may be one way in which the p r o fessio n can make i t s e l f heard more e f f e c t iv e ly on m atters a f f e c t in g the w elfa re o f ch ild re n and youth. Educators in C a lifo rn ia w i l l be more a le r t during the in terim between le g i s l a t i v e s e s s io n s , 85 and i t i s hoped th a t the e f f o r t s o f th e committee w i l l r e s u lt in lea d ersh ip by the p r o fe ssio n in d evelopin g a p o s it iv e program o f le g is la t io n a f fe c t in g ed u ca tio n . (61:1) Chapter Summary The review o f th e lit e r a t u r e has rev ea led th a t the U nited S ta te s C o n stitu tio n con tain ed no p ro v isio n s con cern in g ed u ca tio n . S in ce the Tenth Amendment o f th a t document reserv ed to the s t a t e s a l l powers not e x p r e ssly d eleg a ted to the fe d e r a l governm ent, i t has been ru led th a t ed u cation i s a s t a te fu n c tio n . Through op eration o f the F ifth and F ourteenth Amendments to the C o n stitu t io n , however, the fe d e r a l government has exp ressed an in te r e s t in ed u ca tio n , e s p e c ia lly in ca ses in v o lv in g c i v i l r ig h t s . A ll s t a t e s were found to have p ro v isio n s concerning education in th e ir c o n s t it u t io n s . These p ro v isio n s vary w id ely in number and k in d , from s t a t e to s t a t e . The newer s t a te s and those in the West have more c o n s titu tio n a l p r o v isio n s d ea lin g w ith ed u cation than the o th e r s . The number o f such p r o v isio n s has grown in many s t a t e s through the y e a r s. This i s e s p e c ia lly tru e in C a lifo r n ia . The co u rts have ru led th a t s t a te le g is la t u r e s have 86 plenary power over ed u cation w ith in t h e ir s t a t e s , a power r e s t r ic t e d on ly by p ro v isio n s o f fe d e r a l and s t a te c o n s t i t u t io n s . L e g isla tu res have d eleg a ted some o f t h e ir powers to s t a t e a gen cies such as s t a te boards o f ed u cation and lo c a l boards o f ed u cation . Such d e le g a tio n e x i s t s a t the su ffe r a n c e o f the le g is la t u r e and can be revoked a t any tim e. Local sch o o l d i s t r i c t s p o ssess no in h eren t powers o f t h e ir own. In C a lifo r n ia , as in the oth er s t a t e s , th e le g a l foun dation s o f p u b lic ed u cation were based p rim arily on the s t a t e c o n s titu tio n and the broad powers o f the s t a te le g is la t u r e . Court d e c isio n s and r u lin g s o f the a tto rn ey g en era l a lso have an e f f e c t on the le g a l s ta tu s o f the s c h o o ls . The plenary power over education r e s id in g in the s t a te le g is la t u r e s a p p lie s to curriculum as w e ll as to a l l o th e r a sp ec ts o f ed u ca tio n . Throughout the n a tio n a great d iv e r s it y e x is t s as to the number and types o f s t a te laws d ea lin g w ith c u r r ic u la r m a tters. Some s t a t e s have very few p r e sc r ip tio n s and some have many. C ertain laws are common to many s t a t e s , but th ere are no s u b je c t- m atter p r e s c r ip tio n s req u ired uniform ly in every s t a t e . A ll s t a t e s have mandatory, p erm issiv e, and p r o h ib itiv e types o f s t a tu t e s . The number o f curriculum laws has grown through the y e a r s, the periods im m ediately a fte r World War I and sin c e about 1950 rep resen tin g high p o in ts , and the d ep ression years a low. The g r e a te st number o f new laws d e a lt w ith h ea lth and oth er a sp ects o f s o c ia l liv in g . Many showed the in flu en ce o f s p e c ia l in te r e s t groups. The development o f curriculum law in C a lifo rn ia follow ed much the same p attern as th at in other s t a t e s . By 1923, i t had more cu rr icu la r p r e sc r ip tio n s d ea lin g w ith elem entary sch o o ls than any other s t a t e . These were reduced g r e a tly in number in 1925--from th ir ty -tw o to tw elve--an d th ere were few a d d itio n s from then to the p resen t. Only tw ice in C a lifo rn ia h isto r y was the ad vice o f educators e a r n e stly sought by le g is la t o r s concerning cur riculum le g is la t io n - - in 1851 and in 1925. The 1961 s e s s io n o f the le g is la t u r e began what has appeared to many educators to be a trend toward more d e ta ile d cu rricu lum le g is la t io n , and did i t w ithout the ad vice o f the p ro fessio n as a w hole. Some b e lie v e d the new p re scrip tio n s to be the r e s u lt o f reaction ary and co n serv a tiv e fo rces th a t have exerted pressure on the le g is la t u r e . The p oin t o f view o f the education p ro fessio n toward curriculum le g is la t io n can be summarized b r ie f ly in the fo llo w in g statem ent: While the p r o fessio n recog n iz e s th a t the s ta te le g is la t u r e s have alm ost com plete powers over curriculum , i t f e e ls th a t the le g is la t u r e s should e x e r c ise those powers narrowly and th a t the laws r e s u ltin g from such e x e r c ise should be very gen eral in n atu re—not s p e c if ic . j CH APTER I I I HISTORY O F C U R R IC U LU M AN D INSTRUCTION LEGISLATION IN CALIFORNIA In trod u ction For the purpose o f t h is stu d y , the h is to r y o f C a lifo r n ia le g is la t io n in curriculum and in s tr u c tio n s ta r te d w ith the f i r s t S ta te C o n s titu tio n a l Convention which began on August 1, 1849, in C olton H all in Monterey. The a r t i c l e on ed u cation as rep orted by the Committee on the C o n stitu tio n con tain ed f iv e s e c t io n s . The f i r s t o f th e s e , which was adopted w ithou t d eb ate, provided fo r the e le c t io n o f a su perin ten dent o f p u b lic in s tr u c tio n who was to h old o f f ic e fo r three y e a r s. The second s e c tio n was concerned w ith the fin a n cin g o f the p u b lic s c h o o ls . S e c tio n th ree was r e la te d to curriculum and in s tr u c tio n and s ta te d : The L e g isla tu re s h a ll provide fo r a system o f common sch o o ls by which a sc h o o l s h a ll be kept up and supported in each d i s t r i c t a t le a s t th ree 89 90 months in every y ea r, and any sch o o l n e g le c tin g to keep and support such sch o o l may be deprived o f i t s proportion o f the in te r e s t o f p u b lic funds during such n e g le c t. (1:164) An attem pt was made during the convention to change the sch o o l term from three months to s i x months, but th is f a ile d . S ectio n four provided fo r the use fo r ed u ca tio n a l purposes, or fo r the estab lish m en t o f lib r a r ie s , the " clear proceeds o f a l l fin e s c o lle c te d in co u n ties fo r any breach o f penal law s," the funds thus ra ise d to be d iv id ed among the sch o o l d is t r i c t s o f the co u n ties in proportion to the number o f in h a b ita n ts in each d i s t r i c t . This s e c tio n was voted down because i t was thought th a t (1) ju r ie s might be in c lin e d to punish by fin e o c c a sio n a lly when imprisonment should be in f lic t e d ; (2) there was a fe e lin g a g a in st u sin g money taken from crim in a ls for edu c a tio n a l purposes; and (3) i t would be unwise to reserve s o le ly fo r ed u ca tio n a l purposes a fund which might become very large and which might be needed in other departments o f the government. The f i f t h se c tio n as reported by the Committee, which became S ectio n 4 under A r tic le 9 o f the c o n s titu tio n , was adopted w ithout debate (7 :1 9 4 ). This s e c tio n was concerned w ith the estab lish m en t o f the s t a te u n iv e r s ity . 91 L e g is la tio n from the Years 1850 to 1900 When the le g is la t u r e met in 1851, the ed u cation laws were a r e s u lt o f in f lu e n t ia l work o f p ioneer American educators in C a lifo r n ia . These men had come to the newly crea ted s t a te from New England w ith a l l the ambi tio n s o f t h e ir fo r e fa th e r s to e s ta b lis h in t h is new common w ealth the type o f ed u cation th a t permeated th e ir home s t a t e . Hence the b a s ic curriculum o f 1851 fo r the sch o o ls o f C a lifo r n ia was markedly sim ila r to th a t o f such a c it y as Boston (1 :4 2 ). The f i r s t cou rses o f stu d y . There was an extrem ely in te r e s tin g n ote th a t appeared in S ectio n 10 o f A r tic le 5 in Chapter 126 o f the s ta tu te s : I f a sc h o o l be formed by the en te r p r ise o f a r e lig io u s s o c ie t y , in which a l l the branches o f ed u cation o f the d i s t r i c t sch o o ls s h a ll be ta u g h t, and which from i t s p r iv a te and p u b lic exam ination the committee w i l l fin d i t to be w e ll conducted, such sc h o o l s h a ll be allow ed a com pensation from the P u b lic School Fund in p roportion to the num ber o f i t s p u p ils , in the same manner as i s pro vid ed fo r d i s t r i c t sc h o o ls o f t h is a c t . (97:499) In A r tic le V II, S e c tio n 1, o f the same s t a t u t e s , the c l a s s i f i c a t io n o f sch o o ls was sta te d : (1) prim ary, (2) in term ed ia te, (3) grammar, and (4) high sc h o o l. The i course o f study fo r the above c l a s s i f i c a t i o n was found in S ectio n 2 o f the same a r t i c l e . In the primary sc h o o l, in s tr u c tio n was to be the a lp h a b et, s p e llin g , rea d in g , and grammar. The in s tr u c tio n in the in term ed iate was as fo llo w s: elem entary r u le s o f a r ith m e tic , s p e llin g , read in g , and grammar, the f i r s t p r in c ip le s o f geography, and w r itin g . The course o f study fo r the grammar sch o o l was s p e llin g , rea d in g , w r itin g , a r ith m e tic , grammar, geography, h is to r y , d eclam ation , n a tu ra l s c ie n c e , p h y sio lo g y , chem is t r y , astronom y, the C o n stitu tio n o f the U nited S ta te s , and the C o n stitu tio n o f C a lifo r n ia . The h igh sch o o l course o f study was to in clu d e the fo reg o in g su b je c ts; in a d d itio n to t h is th ere was bookkeeping, su rv ey in g , drawing, m usic, p o l i t i c a l economy, Span ish , French, Greek, and L atin equal to th a t which was req u ired fo r adm ission to c o lle g e . The 1852 le g is la t u r e changed a number o f item s through r e p e a l o f the a c ts o f 1851 (9 8 :1 2 6 ). There was a change in the o rg a n iz a tio n o f th e sc h o o l system ; th is was con tain ed in S e c tio n 2 , A r t ic le VI o f Chapter L III. The s e c tio n determ ined the o rg a n iza tio n to be: primary secondary, and grammar. I t was a ls o in the a c tio n s o f 93 th is le g is la t u r e that the f i r s t mention o f p ro h ib ited in str u c tio n appeared. This was sta te d in S ectio n 3 , A r tic le VI, Chapter L III: No sch o o l book, nor other book o f a se c ta r ia n or denom inational ch aracter s h a ll be introduced or used in any common sch o o ls in s t it u t e d under the p ro v isio n o f t h is A ct. (98:118) The work o f t h is le g is la tu r e was examined and the A r tic le VI o f Chapter L III was rep ealed by th e l e g i s l a ture o f 1853 (9 9 :2 3 3 ). The p r o h ib itiv e in s tr u c tio n measure was not m odified in 1853 nor was there any a c tio n in 1854. The le g is la t o r s during t h is tw o-year period were not concerned w ith curriculum and in s tr u c tio n . It was in the s ta tu te s o f 1855 th a t another o rgan i z a tio n a l p a ttern was developed by the le g is la t o r s . In S ectio n 17 o f Chapter CLXXXV, the d iv is io n was to be prim ary, grammar, and high sch o o l departm ents. In 1855, a fte r an absence o f two y e a r s, p r o h ib itiv e in s tr u c tio n was returned in S ectio n 33 o f Chapter C LXXX V: No books, tr a c ts or papers o f a se c ta r ia n or denom inational ch aracter s h a ll be used o r in tr o duced in any sch ool e s ta b lish e d under th e p rovi sio n o f t h is Act; nor s h a ll se c ta r ia n or denomina tio n a l d o ctrin es be taught th e re in ; nor s h a ll any sch o o l whatever r e c e iv e any o f the p u b lic school fu n d s, which has not been taught in accordance w ith the p r in c ip le s o f t h is A ct. (100:237) 94 F ir s t ju v e n ile d eten tio n s c h o o l. In the area o f curriculum and in s tr u c tio n , th ere was no change excep t that which was found in Chapter CCIX when the le g is la t u r e e sta b lis h e d the In d u str ia l School Department o f the C ity and County o f San Francisco in 1858. I t was the purpose o f t h is sch ool to provide ed u cation fo r those ch ild ren who had been committed for unlaw ful a c t s . This was the f i r s t ju v e n ile d eten tio n sch o o l in C a lifo r n ia (101 :1 6 8 ). M inority groups. In 1860, Chapter CCXXIX o f S ectio n 8 o f the s ta tu te s p ro h ib ited the attendance o f N egroes, M ongolians, and Indians in the common sch o o ls and did not provide any oth er form o f sch o o lin g fo r th ese m inority groups. School o r g a n iz a tio n . I t was not u n t il 1863, during the C iv il War, th a t there was any attem pt by the l e g i s l a ture to change the system o f ed u cation in regard to cur riculum and in s tr u c tio n . The le g is la t o r s ' a c tio n , as recorded in Chapter CLIX, was an a c t to provide fo r the maintenance and su p erv isio n o f the common sc h o o ls . In S ectio n 30 o f th is a c t , the le g is la t o r s p rescrib ed the d u ties and powers o f the sc h o o l t r u s te e s . One o f the 95 d u ties o f the t r u s te e s , as p rescrib ed by law, was to in su re th at the p u b lic sch o o ls were d ivid ed in to primary, grammar, and high sch o o l departm ents. They were a lso in str u cted to provide competent and le g a lly - q u a lif ie d tea ch ers. I f they were unable to provide enough q u a lifie d teach ers fo r a l l le v e l s , then preferen ce was to be given to the primary sc h o o ls . In S ectio n 68 o f Chapter CLIX, there was a p ro v isio n th a t a d i s t r i c t could e s ta b lis h a separate sch o o l for the education o f N egroes, M ongolians, and Indians; and th at they could use the p u b lic sch ool funds for th e ir support. Required in s tr u c tio n . In 1864 the le g is la tu r e again became in te r e s te d in curriculum and in s tr u c tio n and prescribed the courses th a t were to be taugh t. In Chapter CCIX, S ectio n 6, the requirem ents fo r the primary sch ool were lis t e d : orthography, geography, read in g, w r itin g , and a rith m e tic . In the grammar and high sch o o l depart m ents, the cou rses were E n g lish , grammar, h is to r y o f the U nited S ta te s , p h y sio lo g y , h y g ien e, a lg eb ra , geom etry, drawing, n a tu ra l p h ilosop h y, n a tu ra l h is to r y , astronomy, and the elem ents o f bookkeeping. Before the days o f organized v o c a tio n a l sch o o ls or w e ll organized v o c a tio n a l cou rses in secondary s c h o o ls , some su b je c ts o f a voca tio n a l nature were requ ired to be taught in the s c h o o ls . Elementary bookkeeping was thus introduced fo r boys who l e f t sch o o l e a r ly to en ter in to employment where some bookkeeping was a requirem ent (1 :4 4 ). A lso con tain ed in t h is chapter was another m o d ific a tio n o f the e x c lu sio n and se g r eg a tio n o f Negro, M ongolian, and Indian p u p ils . I t now req u ired only a p e t it io n on the part o f the parents o f ten or more o f th ese ch ild re n to e s ta b lis h a sep arate sch o o l fo r them (1 0 4 :2 1 3 ). School s u p p lie s . The f i r s t m ention in the s ta tu te s th a t c e r ta in sch o o l su p p lie s were to be purchased at d is t r i c t expense was made by the 1866 le g is la t u r e (1 0 5 :4 0 0 ). The item s th a t were to be provided were pens, p en h old ers, p e n c ils , crayons fo r b lack boards, in k , and s ta tio n e r y . Manners, m orals, and p h y sic a l ed u ca tio n . The 1866 le g is la t u r e was a ls o f i r s t to mention manners and m orals, and p h y sica l ed u cation . These m atters were introduced in Chapter CCCXLII, S ectio n 55: A ll sch o o ls s h a ll be taught in the E n glish language, and in s tr u c tio n s h a ll be given in the fo llo w in g branches in the se v e r a l grades in which each may be required in th e cou rses o f study adopted in pursuance o f law , v i z . : read in g, w r itin g , 97 orthography, a r ith m e tic , geography, E n glish gram mar, h isto r y o f the U nited S ta te s , p h ysiology, and bookkeeping, and such oth er stu d ie s as may be deemed n ecessary may be au th orized by the S ta te Board o f Education or Boards o f Education o f any c it y or c it y and county; provided, that no such stu d ie s s h a ll be pursued to the n e g le c t or ex c lu sio n o f the stu d ie s h erein s p e c ifie d , and th a t thorough in s tr u c tio n s h a ll f i r s t be given in a l l th ese branches. In stru ctio n s h a ll be given in a l l grades o f s c h o o ls , and in a l l c la s s e s , during the e n tir e sch o o l co u rse, in manners and m orals, and the laws o f h ea lth ; and due a tte n tio n s h a ll be given to such p h y sica l e x e r c ise s for the p u p ils as may be conducive to h ea lth and v ig o r o f body as w e ll as mind, and to the v e n t ila tio n and tem perature o f sch o o l rooms. (105:398) Mention o f "manners and m orals” a t t h is ea rly date in d ic a te s th at there was present in the minds o f the people fo r many years a b e l i e f th a t the sch o o ls should assume a large r e s p o n s ib ility in the development o f a program o f ch aracter education (1 :4 0 ). School h o lid a y s. When the previous le g is la tu r e m et, they introduced le g is la t io n th at e s ta b lish e d sch o o l h o lid a y s. This was amended in 1866 a t which time the February 22nd h olid ay was dropped, but Saturdays were added to those days th a t a teach er was not required to teach (1 0 5 :4 0 0 ). M orality and p a tr io tism . At the c lo s e o f the C iv il ; War, the main o b ject was to preserve and extend an 98 understanding o f and love fo r the n ation and i t s i n s t i t u tio n s (1 :4 5 ). T herefore, S ectio n 70 o f Chapter CCCXLIII was added to the area o f in s tr u c tio n by s ta tin g th at teach ers must endeavor to im press on the minds o f the p u p ils the p r in c ip le s o f m o r a lity , tru th , j u s t ic e , and p a tr io tism . They were a ls o en join ed to teach p u p ils to avoid id le n e s s , p ro fa n ity , and fa lseh o o d . This se c tio n a ls o s tr e s s e d the n e c e s s it y fo r in str u c tio n in the r ig h ts and d u ties o f American c itiz e n s h ip . Required in s tr u c tio n . I t was not u n t il 1870 th a t the le g is la t u r e review ed the area o f curriculum and in s tr u c tio n . In Chapter DLVI, S ectio n 55, the sch o o ls were requ ired to teach rea d in g , w r itin g , orthography, a r ith m etic, geography, E n glish grammar, h isto r y o f the U nited S ta te s , p h y sio lo g y , and bookkeeping. I t was a ls o provided th a t other s tu d ie s might be added, but the required cou rses were to r e c e iv e p r io r ity . P o lit ic a l Code 1872. In 1872 the laws p erta in in g to education were com piled in to the P o lit ic a l Code o f 1872, and from th is p oin t the changes were reported as e ith e r a d d itio n s , amendments, or rep ea ls o f c e r ta in se c - tio n s in th is Code. In 1872 the le g is la tu r e amended 99 S ectio n 1617 o f the P o lit ic a l Code to g iv e the S tate Board o f Education the power to en force the course o f study and to p rescrib e the textbooks to be used by the sch o o l d i s t r i c t s . Another s e c tio n requ ired th a t a tte n tio n must be given to such p h y sic a l e x e r c is e s fo r the p u p ils as may be conducive to h e a lth and v ig o r o f body as w e ll as o f mind, and to the v e n t ila t io n and temperature o f the sch o o l room (9 6 :5 0 3 ). R equired i n s t r u c t i o n . When the l e g is la tu r e met in 1873-1874, they were once ag a in concerned over curriculum and in s t r u c tio n . The a c tio n was in the form o f the amendment o f S e c tio n 1665 o f the P o l i t i c a l Code. The amended s e c tio n s ta te d th a t in s t r u c tio n must be given in the follow ing branches in th e s e v e ra l grades in which they were re q u ire d : re a d in g , w ritin g , o rth o g rap h y , a r i t h m e tic , geography, grammar, h is to ry of th e U nited S ta te s , physiology, n a tu r a l philosophy, n a tu r a l h is t o r y , elem ents o f form, v o ca l m usic, and i n d u s t r i a l drawing. Textbooks. An in te r e s tin g a c t in regard to t e x t books appeared in the 1875 s t a t u t e s . The a c t sta te d th a t the textbooks in use during the sch o o l year 1873-1874 were to be continued in u se . In the area o f curriculum 100 and in s tr u c tio n th ere was no change in th e le g is la t io n u n t i l 1880. Required in s tr u c tio n . In 1880, S ectio n 1665, which d e a lt w ith the requ ired in s tr u c tio n , was again amended; t h is time n a tu ra l p h ilo so p h y , n a tu ra l h is t o r y , and elem ents o£ form were om itted . The n ex t le g is la t u r e th a t was to a ct on curriculum and in s tr u c tio n was the le g is la t u r e o f 1883. I t s a c tio n appears in S ectio n 1663 o f the P o l it i c a l Code. In paragraph 2 , the le g is la t o r s req u ested th a t in the s c h o o ls , in a d d itio n to the re q u ir e ments found in S ectio n 1665, p u p ils were to be prepared so th a t they cou ld en ter the S c ie n t if ic Department o f the U n iv e r sity o f C a lifo r n ia . Another a d d itio n to S ectio n 1663 which was o f in te r e s t was paragraph 6 , which s ta te d th a t diplom as cou ld be con ferred on p u p ils graduating from th e grammar sch o o l on ly a f t e r s a t i s f a c t o r i l y p a ssin g an exam ination given by the County Board o f E ducation. S eg reg a tio n , a lc o h o l, n a r c o tic s , and to b a cco . As was m entioned in the e a r lie r s t a t u t e s , th ere was seg reg a tio n in th e s c h o o ls . In 1885 the le g is la t u r e amended S e c tio n 1662 and sta te d th a t Negroes and Indians were free ; to a tte n d nonsegregated s c h o o ls . The Chinese or Mongolian 101 c h ild re n were s t i l l re q u ire d to a tte n d th e seg reg ated sc h o o ls. A number of su b je c ts were added to the l i s t or withdrawn therefrom because o f th e p re ssu re o f organized m in o r itie s . An example o f th is was the te ach in g o f the e v i l e f f e c ts o f a lc o h o l, n a r c o tic s , and tobacco as a requirem ents of the elem entary school cu rriculum —a measure which was sponsored by the Woman's C h ris tia n Temperance Union (1 :4 3 ). I t s members waged a sta tew id e campaign to inform the people, and a stro n g lobby was organized. As a r e s u l t , when the le g is la tu r e met in 1887, S ectio n 1665 o f th e P o l i t i c a l Code was ag ain amended to read : In stru ctio n must be given in the fo llo w in g branches, in the se v e r a l grades in which each may be req u ired , v i z .; read in g, w r itin g , orth o graphy, a r ith m e tic , geography, grammar, elem ents o f physiology and h y g ien e, w ith s p e c ia l in str u c tio n as to the nature o f a lc o h o lic drinks and n a r co tic s and th e ir e f f e c t s upon the human system , v o ca l m usic, elem ents o f bookkeeping and in d u s tr ia l drawing, and p r a c tic a l entom ology. (112:142) S ectio n 1667 o f the Code was made more s p e c if ic w ith the requirem ent th a t throughout the e n tir e ed u ca tio n a l system , manners and m orals, and the e f f e c t s o f a lc o h o lic drinks and n a r c o tic s upon the human system were to be ta u g h t. P r a c tic a l entomology. As in the o th e r re v is io n s 102 o f S ectio n 1665, i t was noted th a t a t t h is tim e the l e g i s la tu r e req u ired in s tr u c tio n in p r a c tic a l entom ology. This su b jec t was added to the requirem ents because in s e c t p e sts had begun to make se r io u s inroads in to the C a lifo rn ia cro p s. The co u rse, p r a c tic a l entom ology, was a h ig h ly te c h n ic a l su b je c t and fa r beyond the comprehension o f the ch ild r e n who were exp ected to study i t . I t remained a requirem ent fo r s ix years (1 :4 4 ). R equired in s tr u c tio n . S ectio n 1665 was again amended in 1889 when the study o f c i v i l government was added to the requ ired co u rses. C iv il government was made a p rescrib ed su b jec t la r g e ly because o f the la rg e elem ent in the p op u lation and a ls o because o f large numbers o f ch ild re n who were dropping out o f the elem entary sch o o ls b efo re com pleting the work o f the e ig h th grade. I t was f e l t th a t th ese ch ild re n should ob tain a t le a s t elem entary in s tr u c tio n in c i v i l government in order th at they m ight not be e n t ir e ly ignorant o f the in s t it u t io n which p layed so im portant a part in th e ir liv e s (1 :4 4 ). In 1891, S ec tio n 1665 was once again changed. This tim e th ere was a p ro v isio n made fo r the sch o o l w ith an enrollm ent o f 170 or l e s s . Students in th ese sch o o ls were requ ired to study 103 only read in g, orthography, a r ith m e tic , grammar, geography, h is to r y , penmanship, and elem ents o f bookkeeping. High sch ools e s ta b lis h e d . In 1891 another change was made in S ectio n 1665. The course in p r a c tic a l en to mology was no longer req u ired . There w ere, however, se v e r a l very important a d d itio n s made to the P o lit ic a l Code at t h is tim e. S ectio n 1669 s ta te d th a t high sch o o ls may be e s ta b lish e d and m aintained. S ectio n 1670 was fa r more s p e c if ic on the m atter: 1. Any c i t y , incorporated town, or sch o o l d is t r ic t having a p op u lation o f one thousand in h a b i ta n ts or more, may, by a m ajority v o te o f the q u a lifie d e le c to r s v o tin g a t the e le c t io n h eld for the purpose o f determ ining the estab lish m en t and maintenance o f such high sc h o o l, e s ta b lis h and m aintain a h igh sch o o l a t the expense o f such c i t y , incorporated town or sch o o l d i s t r i c t . 2. The course o f stu d ie s fo r the r e sp e c tiv e high sc h o o ls s h a ll be prepared by the high sch ool board, and, except in c i t i e s and incorporated towns, s h a ll be su b je c t to the approval o f the County Board o f E ducation. Said course o f study s h a ll embrace a p eriod o f not le s s than three years; and i t s h a ll be such as w i l l prepare grad uates th e r e in fo r adm ission in to the S ta te Uni v e r s it y . The textbook to be used s h a ll be adopted by the High School Board, su b ject to the same r e s t r ic t io n as i s provided for the adoption o f the course o f stu d y. The S ta te s e r ie s s h a ll be used in grades and c la s s e s fo r which they may be adopted. (114:182) School o r g a n iz a tio n . A fter the advent o f the high sch o o l there was l i t t l e i f any change in the requirem ents u n t il 1897, when le g is la t io n was passed in the form o f Assembly C o n stitu tio n a l Amendment Number 38. S ectio n s ix o f t h is amendment was the only part th a t s ig n if ic a n t ly a ffe c te d sch o o l o rg a n iza tio n . I t sta te d th a t the p u b lic sch o o l system was to in clu d e primary s c h o o ls , grammar s c h o o ls , high sc h o o ls , evening sc h o o ls , normal sc h o o ls , and te c h n ic a l sch o o ls which may be e s ta b lis h e d by the le g is la t u r e or by m unicipal or d i s t r i c t a u th o r ity . How ev er, the s ta te sch ool ta x would be a p p lied e x c lu s iv e ly to the support o f primary and grammar s c h o o ls . The same amendment was concerned w ith the curriculum in the s c h o o ls , s ta tin g th a t the sch o o ls were to prepare stu d en ts to en ter the a g r ic u ltu r e , m ining, or s c i e n t i f i c depart ments o f the U n iv ersity o f C a lifo r n ia . L eR isla tio n from the Years 1900 to 1930 Post graduate c o u r se s. In 1907 the le g is la t u r e , through the a d d itio n o f s e c tio n s 1681 and 1779, s ta te d th a t p ost graduate cou rses could be o ffe r e d . These post graduate cou rses were to be added to the grammar sch o o l 105 fo r p rep aration o f i t s stu d en ts for h igh s c h o o l, and fo r high sc h o o l stu d en ts who wanted to take two years o f c o lle g e work. I t i s in te r e s tin g th a t the elem entary p ost graduate course op portu nity was s t i l l a v a ila b le in the 1961 Education Code. School h o lid a y s . There had been no change in the observances o f h o lid a y s u n t il 1909. In t h is y e a r , the le g is la t u r e d ecla red , in Chapter 4 o f the s t a t u t e s , th a t February 12th was a le g a l h o lid a y because i t happened to be the one hundredth b irth d ay o f Abraham L in co ln . However, the sc h o o ls were not g iv en a f u l l h o lid a y . The law s ta te d in S e c tio n 1 o f Chapter 4 th a t the sc h o o ls would hold s e s s io n in the forenoon o f the day in order to a llo w the customary e x e r c is e s in memory o f the m artyred p r e s id e n t. The c e le b r a tio n o f L in c o ln 's b irth d ay was n ot the only a d d itio n to the Code. In Chapter 82 o f the s t a t u t e s , a "bird and arbor day" was e s ta b lis h e d . S e c tio n 1 o f t h is chapter s ta te d th a t March 7th o f each y e a r --th e b irthd ay o f Luther Burbank—was to be s e t apart and d e s ig nated as b ird and arbor day. A ll p u b lic sc h o o ls were d ir e c te d to observe t h is s p e c ia l day, not as a h o lid a y , but to in clu d e in the sc h o o l work o f the day s u ita b le 106 e x e rc ise s concerning the economic value o f b ird s and t r e e s , and the promotion o f a s p i r i t o f p r o te c tio n toward them. A dditions to th e Code. The a d d itio n o f S ectio n 1665a to the P o l i t i c a l Code in 1909 was in te r e s ti n g in th a t i t s ta te d th a t the board o f ed u catio n in every c ity of the f i r s t c la s s should e s ta b li s h and m ain tain in each c ity o f th a t c la s s a t le a s t one p u b lic school in which French, I t a l i a n , and German should be ta u g h t, in conjunc tio n w ith the stu d ie s in the E n g lish language. The name a p p lie d to th e se schools was "Cosmopolitan S ch o o l." Chapter 593 o f the s ta t u t e s amended S ectio n 1662 o f the P o l i t i c a l Code in 1909. The amendment changed the name of the prim ary and grammar school to the elem entary school and p re sc rib e d th a t the elem entary schools in C a lifo rn ia were to embrace e ig h t years o f in s t r u c tio n . In paragraph one, th e re was a ls o the requirem ent th a t a d i s t r i c t could not allow more than two years o f k in d e rg a rte n in s tr u c tio n . Another in te r e s ti n g development was found in paragraph four o f t h i s s e c tio n , which e s ta b lis h e d an evening e l e mentary school to p a r a l l e l the r e g u la r elem entary school. Chapter 361 o f the 1911 s t a tu te s provided fo r the 107 esta b lish m en t o f cad et com panies. There was a ls o an amendment to S ectio n 1750 o f the P o lit ic a l Code which was concerned w ith in s tr u c tio n in the high sc h o o l. This s e c tio n provided that a d d itio n a l cou rses cou ld be o ffe r e d . The cou rses were manual tr a in in g , dom estic sc ie n c e and a r t , a g r ic u ltu r e , h o r tic u ltu r e , and d a iry in g . In 1915 there was another im portant change in the o r g a n iz a tio n a l p a ttern o f C a lifo rn ia ed u ca tio n . This was the esta b lish m en t o f the in term ed iate sch o o l or cou rses a t the end o f the s ix t h year o f the elem entary sc h o o l. T his change was p rescrib ed in S ectio n 1750a o f the P o l i t i c a l Code. S e ctio n 1779, which d e a lt w ith post graduate c o u r s e s, was amended to provide cou rses in b u sin e ss, E n g lish , commercial a r ith m e tic , commercial and p h y sica l geography, bookkeeping, and U nited S ta te s h is to r y and c i v i c s . The County Board o f Education could a ls o provide co u rses in manual a r t s , elem entary a g r ic u ltu r e , sten o g raphy, and ty p e w r itin g . A lco h o l and n a r c o t ic s . There was a ls o an amendment to S ectio n 1667 o f th e P o l i t i c a l Code which sta te d : I n s tr u c tio n must be given in a l l grades of school and in a l l c la s s e s during th e e n t ir e school c o u rse , in manners and m o rals, and upon th e n a tu re o f a lc o h o l and n a r c o tic s and t h e i r 108 e f f e c t s upon the human system as determ ined by s c ie n c e . (119:235) This was th e f i r s t tim e in the Code th a t a lc o h o l and n ar c o t ic s in s tr u c tio n was to be taught on a s c i e n t i f i c b a s is . In 1915, S e c tio n 1665 o f the P o l i t i c a l Code was again r e v is e d , and the major change was n ot in th e su b je c ts to be taught but in the amount o f tim e th a t was to be sp en t in th e variou s a r e a s. The s e c tio n sta te d : In th e f i r s t s i x grades o f the elem entary sch o o ls a t le a s t th r e e-fo u r th s o f the p u p ils' tim e during each week s h a ll be devoted to study and r e c it a t io n o f the su b je c ts h erein b efo re enumerated and the seven th and e ig h th grades a t le a s t 12.5 hours o f ., the p u p ils ' time each week should be devoted to the study and r e c it a t io n o f such s u b je c ts . From the tim e rem aining a f t e r the study and r e c it a t io n o f such su b jec ts have been provided fo r in s tr u c tio n must be given in nature study w ith s p e c ia l referen ce to a g r ic u ltu r e and b ir d l i f e ; p h y sic a l c u ltu r e , m usic, drawing and elem entary bookkeep in g , humane ed u cation . . . (119:771) P erm issive c o u r s e s. In S ectio n 1750, which d e a lt w ith the h ig h sch o o l course o f stu d y , th ere was l i t t l e i f any change in the mandatory requirem ents. The changes t h is time were in the areas o f p erm issive c o u r se s. The s e c tio n s ta te d th at every h igh sch o o l course may in clu d e tr a in in g in a t h l e t i c s , m ilita r y d r i l l and t a c t i c s , manual tr a in in g , dom estic sc ie n c e and a r t , a g r ic u ltu r e , h o r t i c u ltu r e , d a iry in g or oth er v o c a tio n a l work. The high sch o o ls a t t h is time were s t i l l able to o ffe r post graduate cou rses fo r the f i r s t two years o f c o lle g e work. Work exp erien ce program. In 1917 the le g is la tu r e added a new s e c tio n to the P o lit ic a l Code which was 1750c. It was th is new s e c tio n that was the forerunner o f the work experien ce program. The high sch ool board was given the power to m aintain p art-tim e v o ca tio n a l courses in a g r ic u ltu r e , com m ercial, in d u s tr ia l, tra d e, or other v o c a tio n a l su b je c ts . The s e c tio n went on to s ta te th a t a t le a s t th ree hours d a ily or an eq u iv a len t amount o f time be devoted to farm mechanics and to farm p ro ject work on a com m ercially productive b a s is ; and a t le a s t three hours d a ily or an eq u ivalen t amount o f time to academic work in sch o o l. The same that was true for the student in a g r ic u ltu re was true fo r the student in commerce, in d u stry , tra d e, or other v o c a tio n a l su b je c ts . C ontinuation ed u cation . In 1919 there was another in tro d u ctio n to the Code in the area o f p art-tim e educa tio n . In Chapter 506 o f the s t a t u t e s , co n tin u a tio n edu c a tio n was e s ta b lis h e d . The law sta te d th at a d is t r ic t should provide a t le a s t four six ty -m in u te hours o f in s tr u c tio n per week. S ectio n 4 o f Chapter 506 provided the 110 courses th a t were to be o ffe r e d . The fo llo w in g cou rses were m entioned: (a) They s h a ll e s ta b lis h and m aintain sh ort u n it cou rses and g iv e in s tr u c tio n in c iv ic s and v o c a tio n a l su b je c ts and su b je c ts supplem entary to home, farm, com m ercial, tr a d e , in d u s tr ia l or oth er o ccu p ation s; and they may g iv e in s tr u c tio n in any elem entary, secondary or oth er sch o o l sub j e c t s . (b) They s h a ll provide fo r in d iv id u a l co u n sel and guidance in s o c ia l and v o c a tio n a l m atters fo r each p u p il e n r o lle d in th ese c la s s e s . (e) They s h a ll provide in s tr u c tio n in home economics su b je c ts fo r those who d e sir e and need work o f t h is ch a ra cter. ( f) They s h a ll provide in s tr u c tio n in o r a l and w ritte n E n g lish and in the d u tie s and r e sp o n si b i l i t i e s o f c itiz e n s h ip for persons e n r o lle d in th ese c la s s e s who can not speak or w rite the E n glish language to a degree o f p r o fic ie n c y equal to th a t req u ired fo r the com pletion o f the s ix t h grade o f the elem entary sc h o o ls o f t h is s t a t e . (g) They s h a ll n ot req u ire o f p u p ils a minimum uniform standard o f p r o fic ie n c y in any su b jec t m aintained in th ese c la s s e s , excep t in th ose sub j e c t s d esign ed to prepare fo r oth er c la s s e s or oth er s c h o o ls . (121:1049) S ec tio n 14 o f the same chapter s ta te d th a t d is t r i c t s cou ld m aintain the co n tin u a tio n c la s s e s on Saturday for a four-hour p erio d . A lso in Chapter 506 th ere was the f i r s t m ention o f guidance. A ttorney General Opinion No. 3720. The f i r s t r u l ing of the a tto rn e y g en e ra l th a t p e rta in e d to ed ucation was made in 1919. I t was issu ed as A ttorney G eneral Opinion No. 3720, and concerned atten d an ce and ta x monies problems between th e Mountain View and the Palo A lto school d i s t r i c t s . The follow ing y e a r, A ttorney G eneral ru lin g number 4014 was made over a c o n f lic t between the Code and th e B utte County C h a rter. The d isp u te had a r is e n when the tr u s te e s o f a school d i s t r i c t had been a u th o riz e d by the Code to purchase school fu rn itu re and ap p aratu s fo r the d i s t r i c t . The s e c tio n o f th e Code had been superseded by th e County C h arter and the County S uperintendent was a u th o riz e d to do the purchasing o f a l l n ecessary m a te ria ls fo r the d i s t r i c t . The A ttorney Gen e r a l s ta te d in h is opinion th a t school a f f a i r s were not m unicipal a f f a i r s . He s ta te d f u rth e r th a t th e s ta te laws govern school d i s t r i c t s and tak e precedence over county or m unicipal laws. His re fe re n c e fo r t h i s ru lin g was the case o f the Los Angeles School D i s t r i c t v . Longden (148 C a lifo rn ia 380). A ttorney General Opinion No. 4016. Another ru lin g th a t a ffe c te d the sch o o ls was No. 4016, issu e d in 1920. The q u estion had a r ise n over whether or not S ectio n 1613 112 o f the P o lit ic a l Code intended to au th orize the use o f sch ool b u ild in g s fo r church purposes. The A ttorney General ru led th a t to a llo w the sch o o l b u ild in g to be used fo r church purposes would be in v io la t io n o f S ectio n 30 o f A r tic le IV o f the S ta te C o n stitu tio n which p ro h ib ited the le g is la tu r e from making an ap p rop riation or paying from any p u b lic fund whatever; gran ting anything to or in a id o f; or from granting or donating personal property or r e a l e s ta te fo r any r e lig io u s creed , church, or s e c ta ria n purpose w hatever. R evision s in the P o lit ic a l Code. .The le g is la tu r e in 1921 r e v ise d the two s e c tio n s o f the P o lit ic a l Code th a t d e a lt w ith curriculum and in s tr u c tio n on the elem en tary and secondary le v e ls . The su b je c ts th a t were required were not changed on the elem entary l e v e l, but there was a change in the amount o f tim e to be spent on various sub j e c t s . S ectio n 1665 o f the Code sta te d th a t in the f i r s t s ix grades o f the elem entary sch o o ls a t le a s t tw o-th ird s o f the p u p ils 1 tim e should be devoted to the required s u b je c ts . This change was a more lib e r a liz in g in novation than had been tru e in the p a st. The amount o f time r e quired b efore by the le g is la t u r e was th r ee -fo u r th s o f the 113 tim e fo r the req u ired s u b je c ts . The tim e fo r th e req u ired cou rses in the sev en th and e ig h th grades remained con s ta n t a t tw elve and o n e -h a lf hours per week. In the second paragraph o f t h is s e c tio n th ere was another tim e c o n sid e r a tio n . This tim e requirem ent was th a t a t le a s t twenty m inutes o f each sch o o l day be devoted to p h y sic a l tr a in in g . This requirem ent was to apply to only those stu d en ts who were e ig h t years o f age or o ld e r . Another in te r e s tin g n ote appeared in the th ir d paragraph o f S ectio n 1665 in which the le g is la t u r e s p e c i f ie d th a t no textbook adopted should co n ta in any m atter r e f le c t in g upon c it iz e n s o f the U nited S ta te s because o f t h e ir race or c o lo r . S ev era l changes in the requirem ents fo r the secondary sc h o o ls are con tain ed in S ectio n 1750 o f the Code. The amended s e c tio n s ta te d th a t the course fo r the fo u r-y ea r h igh sch o o l should be d esign ed to f i t the needs o f the stu d e n ts. F ollow ing t h is very g en era l re q u ir e ment was a more s p e c if i c requirem ent which s ta te d th a t the d i s t r i c t s were to have a course o f study which pre pared the stu d en ts fo r adm ission to s t a te normal s c h o o ls , s t a te te a c h e r s' c o lle g e s , and the S ta te U n iv e r s ity . This [ requirem ent was more d e ta ile d than oth er p reviou s s e c tio n s 114 because i t s p e c ifie d th ree d iffe r e n t p o s s ib le cou rses o f stu d y. A ttorney General Opinion No. 4277. E a r lie r in t h is ch ap ter m ention was made o f the se g r e g a tio n o f c e r ta in m in ority groups from the p u b lic sc h o o ls o f C a lifo r n ia a t va rio u s tim e s. A q u estio n arose which was brought to the a tte n tio n o f the A ttorney G eneral in 1921. T his concerned Indian c h ild r e n liv in g o u tsid e th e Indian r e s e r v a tio n . The A ttorney General r u le d , in op in ion No. 4277, th at the Indians were e n t it l e d to a tte n d p u b lic s c h o o ls , provided t h e ir parents were c it iz e n s o f the U nited S ta te s and r e s id e n ts o f the sch o o l d i s t r i c t in q u e stio n . Hardwick v . Board o f S ch ool T r u ste e s. The f i r s t court case th a t was r e la te d d ir e c t ly to in s tr u c tio n and curriculum was the case o f Hardwick v . Board o f School T ru stees o f F lin tr id g e School D is t r ic t (205 P. 4 9 ) . The problem in t h is case was th a t th e sc h o o l d i s t r i c t had suspended and e x p e lle d Irma and Douglas Hardwick for f a i l ure to take p art in dancing in the s c h o o l's p h y s ic a l edu c a tio n program. T heir fa th e r had excused the ch ild re n from p a r tic ip a tio n because i t was a g a in st t h e ir sc ru p le s 115 and r e lig io u s b e l i e f s . Mr. Hardwick had demanded th a t h is ch ild re n be r e in s ta te d , but was re fu se d . The a c tio n o f the Board o f T rustees caused him to take h is com plaint to c o u r t. The court ru led th a t the ch ild re n were to be r e in s ta te d . The reasons g iv en were: the sch o o l a u th o r itie s had no r ig h t to ex p el c h ild r e n fo r t h e ir r e fu s a l, in obedience to th e ir p a ren ts' command, to dance, w a ltz , p olk a, or tw o-step ; persons opposed to a curriculum in clu d in g dancing, need not be a f f i l i a t e d w ith any r e lig io u s o rg a n iza tio n ; n e ith e r the s ta te nor a sch o o l board has the r ig h t to en act a law or r e g u la tio n the e f f e c t o f which would be to a lie n a te in a measure the ch ild re n from p a ren ta l a u th o rity along lin e s look in g to the b u ild in g up o f the p ersonal w elfa re o f the c h ild r e n , where the view s o f the parents were not o ffe n s iv e to the moral w e ll-b e in g o f the ch ild ren nor in c o n s is te n t w ith the b e st in te r e s t o f s o c ie t y . The e f f e c t o f the cou rt r u lin g was th a t now th ose parents who o b ject to dancing cou ld have th e ir ch ild re n excused from p a r tic ip a tio n in t h is a c t i v it y . A dd ition to the Code. In 1923 the le g is la t u r e add ed another gen eral requirem ent to the Code. Chapter 176 116 o f the 1923 s ta tu te s s ta te d th a t in the fo llo w in g year the sch o o ls were requ ired to g iv e in s tr u c tio n in the C o n stitu tio n o f the U nited S ta t e s , and in clu d ed in t h is was to be a study o f American in s t it u t io n s and id e a ls . The s ta tu te went on to say in S ectio n 2 th a t in s tr u c tio n in the C o n stitu tio n o f the U nited S ta te s should b eg in not la t e r than the opening o f the eig h th grade. The in s tr u c tio n was a ls o to continue in the high sch o o l and in the s t a te c o lle g e s . A ttorney G eneral Opinions Nos. 4673 and 4941. In 1923 th ere were two A ttorney General r u lin g s which had a b earin g on the sch o o ls in the area o f curriculum and in s tr u c tio n . R uling No. 4673 arose from a q u estio n about S ec tio n 1750 o f the P o l i t i c a l Code which d e a lt in part w ith the p erm issive cou rses m entioned e a r lie r . The s e c tio n in q u estio n au th orized in s tr u c tio n in manual tr a in in g , dom estic sc ie n c e and a r t , or oth er v o c a tio n a l work. The q u estio n proposed to the A ttorney General was whether or not auto re p a irin g o f p riv a te v e h ic le s by stu d en ts was proper. The A ttorney General sta te d th a t i t would be a c cep ta b le as long as i t was done s o le ly fo r the in s tr u c tio n o f the h igh sch o o l stu d e n ts. In r u lin g No. 4941 o f the 117 same y ea r , th ere was the q u estio n o f whether or n ot i t was la w fu l in C a lifo rn ia to c lo s e sc h o o ls an hour e a r lie r than u su a l one or two days a week to enable stu d en ts to go to such sc h o o ls or churches fo r r e lig io u s in s tr u c tio n as t h e ir parents or guardians might in d ic a te . There was a ls o the q u estio n o f what to do w ith th ose stu d en ts who did n ot go to any r e lig io u s in s tr u c tio n . The A ttorney General ru led th a t, as long as the sch o o l m eets the m in i m um tim e requirem ent, i t was p erm issib le to r e le a s e the stu d e n ts. He a ls o s ta te d th a t stu d en ts who did n ot want r e lig io u s in str u c tio n were not req u ired to remain in sc h o o l; to req u ire them to do so would be to cause d is crim in a tio n . Evans v s . Selma Union High School D i s t r i c t . In 1924 there was another court case th a t had some b earin g on curriculum and in s tr u c tio n . This was the case o f Evans v s . Selma Union High School D is t r ic t (22P. 8 0 1 ). In t h is case Evans, the p l a i n t i f f , brought an a c tio n to en jo in the tr u s te e s o f the Selma Union High School D is t r i c t o f Fresno County from carryin g in to e f f e c t a r e so lu tio n fo r th e purchase o f tw elve c o p ie s o f the B ib le in the King James v e r sio n fo r the lib r a r y o f the h igh sc h o o l. 118 Evans contended th a t the King James v er sio n o f the B ib le was a book o f se c ta r ia n nature and th erefo re contrary to the C o n stitu tio n and sta tu to ry p ro v isio n s o f the S ta te . The court ru led th a t the King James v er sio n o f the B ib le was not a se c ta r ia n book. The im portant point in th is case was th a t the King James v er sio n o f the B ib le could be used in the lib r a r y as a referen ce work. P iper v s . Big Pine School D is t r i c t . The cou rts again a cted in 1924 in the area o f curriculum and in s tr u c tio n in th e case o f Piper v . Big Fine School D is t r ic t (193 C al. 664). The problem in t h is case was th a t A lic e P ip er, an Indian stu d en t, age f if t e e n y e a r s, and a r e s i dent o f th e d i s t r i c t , was refu sed adm ittance to the sc h o o l. The court sta te d th a t the education o f the c h i l dren o f the s ta te was an o b lig a tio n which the s ta te had taken over by the C o n stitu tio n and was e x c lu s iv e ly a fu n ction which could not be d eleg a ted to any other agency. The d i s t r i c t had a ls o sta te d th a t the issu an ce o f a w rit o f mandamus to compel the d i s t r i c t to take the student would c r e a te se r io u s economic problems because there were other Indian ch ild ren who did not liv e on the r e ser v a tio n who would then be e l ig i b l e to a tte n d . The court answered 119 t h is by sayin g th a t, w h ile the economic q u estio n was d o u b tless an im portant m atter to the d i s t r i c t , i t should be addressed to the l e g i s l a t i v e department o f th e s t a te government. The w rit o f mandamus was granted. R equired i n s t r u c t i o n . C hapter 276 o f th e 1925 s t a t u t e s once again amended S e c tio n 1665 o f th e Code. This time the number o f cou rses to be taught was in crea sed . The cou rses were to in clu d e rea d in g , w r itin g , s p e llin g , language stu d y , a r ith m e tic , geography, h is to r y o f the U nited S ta te s and o f C a lifo r n ia , c i v i c s , in clu d in g a study o f the C o n stitu tio n o f th e U nited S ta t e s , m usic, a r t , tr a in in g fo r h e a lth fu l liv in g , m orals and manners, and such oth er s tu d ie s not to exceed th r e e . In previous y ea rs the le g is la t u r e had req u ired a s p e c ifie d amount o f tim e to be spent in the requ ired su b ject a re a s. When o r ig in a lly in trod u ced , the req u ired tim e had been th r ee- fou rth s and then was amended to tw o -th ir d s. In 1925 the requirem ent o f tim e was s e t a t 50 per cent o f the sch o o l day fo r rea d in g , w r itin g , s p e llin g , language stu d y , and a r ith m e tic . One o f the in te r e s tin g a sp ec ts o f t h is re g u la tio n was th a t not a l l o f the mandatory su b je c ts were in clu d ed in the 50 per cent requirem ent. 120 A ttorney General Opinion No. 5141. There was a ls o an A ttorney General r u lin g during t h is p eriod th a t d e a lt w ith an area o f in s tr u c tio n . The q u estio n asked o f the A ttorney General was whether a board o f sch o o l tr u s te e s could allow the Lord's Prayer, as found in the King James v e r sio n o f the B ib le , to be repeated by a l l o f the stu d en ts a t the opening o f sch o o l in the morning. Opinion No* 5141 s ta te d th a t the reading was con sid ered i l l e g a l ; the op inion was based on the case o f Evans v . Selma Union High School D i s t r i c t . In 1927 se v e r a l changes were made in the P o lit ic a l Code. One o f the changes gave the lo c a l boards the power to e s ta b lis h a course in fo r e s tr y . This was a new s e c tio n , 1608b. Another a d d itio n was the abolishm ent o f the p ost graduate cou rses in the high sch o o ls by the estab lish m en t o f the ju n io r c o lle g e . This was done in S ectio n 1720. A ttorney General Opinion No. 5909. An opinion was given by the A ttorney General in 1927 which caused a change to be made in S ectio n 1534 o f the P o lit ic a l Code. The op inion was No. 5909, which d ea lt w ith a q u estion about the r ig h t o f the s ta te to p rescrib e ru les and re g u la tio n s on sch o o ls taught in a fo reig n language. The A ttorney 121 G eneral ru led th a t the se c tio n was in v io la t io n o f the U nited S ta te s C o n stitu tio n . He based h is op inion on the U nited S ta te s Supreme Court r u lin g in the case o f W allace R. F arrin gton , Governor o f the T errito ry o f H aw aii, e t a l . v . T. Tohushige, e t a l . A ttorney General R uling No. 6679. In 1928 the A ttorney General was again q u estion ed as to whether or not i t was p erm issib le for a church o rg a n iza tio n to conduct c la s s e s in r e lig io u s d is c ip lin e o f the church in a sch o o l house o u tsid e o f sch o o l hours. The attendance in th ese c la s s e s was to be e n tir e ly volu n tary and sim ply in r e sponse to church d is c ip lin e . In r u lin g No. 6679, the A ttorney General again sta te d th a t under the laws o f the s t a t e , t h is could n ot be done. School Code. In 1929 a l l ed u ca tio n a l laws were com piled in to one code. The new code was c a lle d the School Code, and w ith th is came a new numbering system . Chapter IV o f the School Code was concerned w ith requ ired in s tr u c tio n . S ectio n 3.40 s ta te d th a t a l l sch o o l c la s s e s must be taught in E n glish . A r tic le I I o f Chapter IV d e a lt w ith p ro h ib ited in s tr u c tio n . In S ectio n 3 .5 0 , the Code s ta te d th a t no teacher in g iv in g in s tr u c tio n , nor 122 en tertain m ents perm itted on or about any s c h o o l, should r e f l e c t in any way upon c it iz e n s o f the U nited S ta te s because o f th e ir r a c e , c o lo r , or creed . The im portant p o in t o f t h is s e c tio n was th a t fo r the f i r s t tim e some th in g was m entioned about en tertain m en t. I t was an apparent attem pt by the le g is la t u r e to c o n tr o l to some ex te n t the type o f en tertain m en t, in the form o f assem b l i e s and the l i k e , that th e sc h o o l p a r tic ip a te d in . In the oth er s e c tio n s on p r o h ib ite d in s tr u c tio n , there were no changes from what had been done in the p a st. Another amendment to the Code was con tain ed in S e c tio n 3 .9 0 , which sta te d what h o lid a y s were to be ob served: The p u b lic sch o o ls o f t h is s ta te s h a ll, u n le ss otherw ise p rovid ed , c lo s e on Saturday, Sunday, the f i r s t day o f January, the t h i r t i e t h day o f May, th e fou rth day o f J u ly , th e n in th day o f September, the elev en th day o f November, the tw e n ty -fifth day o f December, and on every day appointed by th e P resid en t o f the U nited S ta te s or the governor o f t h is s t a te fo r a p u b lic f a s t , th an k sgivin g or h o lid a y . (126:303) S e ctio n 3 .9 0 made se v e r a l changes in p revious s t a t u t e s . F i r s t were the new h o lid a y s th a t in c lu d ed May t h i r t i e t h , September n in th , and November e le v e n th . The second change was the d e le tio n o f the h o lid a y s fo r the g en era l e le c t io n and the s p e c ia l j u d ic ia l e le c t io n th a t had been p rescrib ed 123 as sch o o l h olid ays under the P o lit ic a l Code. In the area o f curriculum , there were se v e r a l changes made in p ast s t a t u t e s . The a d d itio n o f f ir e pre v en tio n was one. S ectio n 3.722 sta te d th a t i t was the duty o f each teach er to devote a reasonable amount o f time each month to f ir e p reven tion . Another change was made in the time a llo t t e d fo r required su b jec ts in grades seven and e ig h t. S ectio n 3.762 sta te d th a t a minimum o f s ix hundred m inutes was to be spent on the required sub j e c t s . The former re g u la tio n had been fa r more s t r i c t , s ta tin g th at a t le a s t 12.5 hours were to be sp en t. The new r e g u la tio n decreased the number o f hours to ten hours per week. O n the secondary l e v e l, there was no change in p revious requirem ents. L e g isla tio n from 1930 to 1961 School h o lid a y s. In Chapter 27 o f the 1933 s t a t u te s there was an a c t to amend S ectio n 3.90 o f the School Code which was concerned w ith the number o f days th a t the p u b lic sch o o ls should be c lo se d . The new amendment sta te d : 3 .9 0 . The p u b lic sch o o ls o f th is S ta te s h a ll, u n le ss otherw ise provided, c lo s e on Saturday, Sunday, the f i r s t day o f January, the t h ir t ie t h day o f May, the fourth day o f J u ly , the tw enty- f i f t h day o f December, and on every day appointed 124 by the P resid en t o f the U nited S ta te s fo r p u b lic f a s t , Thanksgiving, or lik e h o lid a y ; p rovid ed , th a t the Governor in ap p oin tin g any day fo r a h olid ay may provide whether or n o t the p u b lic sch o o ls s h a ll c lo s e on such h o lid a y . S ectio n 2 . The a c t i s hereby d eclared to be an urgency measure n ecessary fo r immediate p reserv a tio n o f the p eace, h e a lth , and s a f e t y , w ith in the meaning o f S ectio n 1 A r tic le 4 o f the C o n sti tu tio n and s h a ll th erefo re go in to immediate e f f e c t . The fa c ts c o n s titu tin g the n e c e s s it y are as fo llo w s: The p u b lic sc h o o ls having been c lo se d by; the proclam ation o f the Governor de c la r in g the secon d, th ir d , and fou rth days o f March 1933, p u b lic h o lid a y s by reasons o f th e e x is tin g p ro v isio n s o f the School Code S e c tio n 3 .9 0 and i t being p o ssib le th a t oth er p u b lic h o lid a y s may be proclaim ed by the Governor, the p u b lic sch o o ls are th erefo re unable to perform t h e ir fu n ction o f educating and p rovid in g fo r th e w el fare o f the youth o f t h is S ta te , and i t i s n e c e s sary th at the p u b lic sch o o ls be perm itted to d is charge th e ir fu n ctio n during any h olid ay ap poin ted by the Governor wheti in the judgment o f th e Governor, the p u b lic sch o o ls should not be c lo s e d . (127:302) I t would appear th a t Governor James Ralph, J r . , had gone too fa r when he d eclared the sch o o l h o lid a y s in March. I t i s a ls o worth n o tin g the d e le tio n s from the School Code o f 1929 made by the le g is la t u r e . They had, in f a c t , dropped the n in th day o f September and th e elev en th day o f November. I t had a ls o taken away from the governor the power to d eclare a h o lid a y fo r the sc h o o ls. Another in te r e s tin g fa c e t o f th is s t a tu t e i s the deep concern o f the le g is la t o r s fo r the ed u ca tio n 125 and w elfare o f the ch ild re n o f C a lifo rn ia S p e c ia l s c h o o ls . In a d d itio n to the above changes in the Code, there was another a d d itio n . This was brought about in S ectio n 3 .6 1 1 , Chapter 1050 o f the s ta tu te s which allow ed fo r the estab lish m en t and m aintenance o f s p e c ia l sch o o ls or c la s s e s fo r ch ild ren o f m igratory lab orers engaged in sea so n a l in d u s tr ie s . Bates v . Escondido Union High School D i s t r ic t . The fou rth court case th a t had an im p lica tio n on curriculum and in s tr u c tio n was Bates v . Escondido Union High School D is t r ic t (24 P2d 8 84). The case was brought to court as a r e s u lt o f a bus a c c id e n t. Two sch o o l d i s t r i c t s , Escondido Union High School D is t r ic t and Grossmont Union High School D is t r ic t , were taking an a g r ic u ltu r a l f i e l d t r ip throughout the s t a te during the summer, and the a ccid en t occurred on the return part o f the t r ip . The q u estio n s asked by Bates th a t were concerned w ith cu rr icu lum and in str u c tio n were whether a d is t r i c t could o ffe r a course in a g r ic u ltu r e , and, i f i t co u ld , whether i t could o ffe r i t during the summer. The cou rts answered th a t i t was p erm issib le under School Code 3,805 to o ffe r a course in a g r ic u ltu r e , and th a t the d i s t r i c t cou ld o f fe r 126 th e course in the summer as r e fe r r e d to in School Code 3 .6 7 0 . U n d erh ill v . Alameda Elem entary School D i s t r i c t . Another court d e c isio n th a t fo llo w ed c lo s e ly the former was the case o f U n d erh ill v . Alameda Elementary School D is t r ic t (24 P2d 8 4 9 ). U n d erh ill charged in h is com plaint th a t because the d i s t r i c t was n e g lig e n t in p rovid in g a s a fe playground, h is son was in ju re d . He fu rth er sta te d th a t the playground was too sm all fo r p la y in g b a s e b a ll. The court in t h is case sa id th a t the com plaint f a ile d to show th a t the sch o o l yard was inadequate in s iz e fo r the purpose fo r which i t was u sed , nor th a t th ere was anything about the nature o f the game played which would req u ire th a t only ch ild ren o f a uniform age and s iz e be p erm itted to engage th e r e in . F ie ld t r i p s . In 1935 th e re was an a d d itio n to the School Code which in d ic a te d th a t th e le g i s l a t u r e had given i t s approval o f f i e l d t r i p s and co n sid e re d them im portant to the ed u catio n o f p u p ils in C a lif o rn ia . In C hapter 463 o f the s t a t u t e s , the l e g i s l a t u r e re q u ire d t h a t on a l l f i e l d t r i p s , a f i r s t a id k i t must be made a v a ila b le ; and th e i n s t r u c to r o r s u p e rv is o rs o f th e f i e l d t r i p should 127 have a knowledge o f f i r s t a id treatm en t. Jones v . Board o f T rustees o f Culver C ity . Another court a c tio n took p lace in 1935; t h is was the case o f Jones v . Board o f T ru stees o f C ulver C ity (47 P2d 8 0 4 ). The p l a i n t i f f was fo r a number o f years employed as a permanent tea ch er o f m usic in one o f the Culver C ity s c h o o ls . O n May 11, 1933, the board o f tr u s te e s passed a r e s o lu tio n ’’ th a t the su b je c t o f m usic be d isco n tin u ed in the sc h o o ls o f t h is d i s t r i c t a t th e end o f the sch o o l y e a r ” and in str u c te d the c le r k o f the d i s t r i c t to n o tif y the respondent th a t she was d ism issed . The im portance o f t h is case to curriculum and in s tr u c tio n was th a t the court ru led th a t the sc h o o l board had gone beyond i t s power, sin c e m usic was a p rescrib ed branch o f study as s ta te d in S ch ool Code 3 .7 6 1 . A ttorney General Opinions Nos. 10672 and 10676. The A ttorney General in 1936 was con fron ted w ith two fa m ilia r q u e stio n s. They concerned the use o f p u b lic sch o o l b u ild in gs fo r Sunday Schools and the l i k e . In op in ion s Nos. 10672 and 10676 th e A ttorney G eneral ru led th a t the b u ild in g s could n o t be used for r e lig io u s purposes. For a p ro tra cted p er io d , th ere was a d e s ir e by va rio u s church 128 groups throughout the s t a t e to ob tain use o f p u b lic school b u ild in g s for r e lig io u s s e r v ic e s . The A ttorney General was c o n s is te n t throughout in not allow in g these groups the use o f the b u ild in g s. G a b r ie lli v . K nickerbocker. In 1937 the court was asked to ru le on the r e fu s a l o f a student to sa lu te the fla g . This was the case o f G a b r ie lli v . Knickerbocker (74 P2d 290). The stu d en t was e n r o lle d a t Fremont School in Sacramento County and was suspended and ex p elle d for fa ilu r e to sa lu te the f la g . Both the stud en t and h is parents were members o f the Jehovah W itnesses. The court ordered the stu d en t returned to sch o o l. The court sta te d that the suspension and ex p u lsio n o f the p u p il from sch ool for fa ilu r e to sa lu te the American f la g , w ithout fo llo w in g the s ta tu te req u irin g "other means o f c o r r e c tio n ," was a rb itra ry and unwarranted, e s p e c ia lly when the order o f suspension or exp u lsion was u n lim ited in tim e. S p e cia l sch ool d a y s. The le g is la tu r e in 1939 amended S ectio n 3.100 which re fe rr ed to the s p e c ia l days which sch o o ls were to ob serve. The new amendment added the observance o f Susan B. Anthony. The se c tio n sta te d that February 15th o f each y ea r, being the anniversary 129 o f the b irthd ay o f Susan B. Anthony, was d esig n a ted and s e t apart as Susan B. Anthony Day. A ll p u b lic sch o o ls and ed u ca tio n a l in s t it u t io n s were d ire cted to observe the day w ith su ita b le e x e r c is e s , d ir e c tin g a tte n tio n to the development o f the p o l i t i c a l and economic sta tu s o f women in the U nited S ta te s through the e f f o r t s o f Susan B. Anthony. A ttorney General Opinion No. NS 2795. In 1940 the A ttorney General receiv ed two q u estion s regarding in s tr u c t io n . The f i r s t asked whether a d i s t r i c t might expend d i s t r i c t funds fo r the purchase o f land and b u ild in g m a teria ls to be used in the co n stru ctio n o f a d w ellin g house by the v o c a tio n a l carpentry c l a s s , which house upon com pletion would be so ld fo r the h ig h e st p rice ob tain ab le and the proceeds were to accrue to the d i s t r i c t funds. The second q u estio n was whether i t was law fu l fo r the governing board to make an agreement w ith a p riv a te party fo r the co n stru ctio n o f a d w ellin g house or oth er s tr u c ture by the v o c a tio n a l carpentry c l a s s , whereby the p riv a te party a t h is own expense was to fu rn ish the land and m a teria ls and the str u c tu r e , upon com p letion , would be owned by him. In op inion number NS 2795 the A ttorney General answered the f i r s t q u estion by s ta tin g th a t the sch o o l d i s t r i c t had no a u th o r ity , by reason o f School Code s e c tio n s providing fo r v o c a tio n a l ed u cation , or o th erw ise, to engage in the b u sin ess o f purchasing, improving by co n stru ctio n o f b u ild in g and s e llin g r e a l property. His answer to the second q u estion was th at the carpentry c la s s could not b u ild a house fo r a p riv a te party a t th a t p erson 's expense. The reason sta te d was th a t the p o s s ib ilit y o f many l i a b i l i t i e s could be seen upon co n sid erin g the proposed plan whereby a sch ool d is t r i c t undertook to b u ild houses fo r the owners o f r e a l e s ta te who would a ls o fu rn ish the m a te r ia ls. A ttorney General Opinion Nos. N S 4004 and 4070. In 1941 world co n d itio n s were such th a t during the Fourth Extra S essio n o f the le g is la tu r e th ere was another ad di tio n made to the School Code. The new a d d itio n , S ectio n 3 .9 3 , allow ed sch o o l d is t r ic t s to m aintain c la s s e s on Saturday. The measure was intended to provide v o c a tio n a l tr a in in g c la s s e s fo r the n a tio n a l d efen se program. The le g is la tu r e in regu lar se s s io n a ls o amended S ectio n 3.90 and 3.101 in Chapter 694 o f the s t a t u t e s . S ectio n 3.90 sta te d : 131 3 .9 0 , The p u b lic sc h o o ls o f t h is S ta te s h a ll u n le ss oth erw ise provided c lo s e on Saturdays, Sunday, the f i r s t day o f January, the tw e lfth day o f February, th e tw enty-secon d day o f February, the t h ir t ie t h day o f May, the fou rth day o f J u ly , the n in th day o f September, the e le v e n th day o f November, the tw e n t y - fif th day o f December, and on every day appointed by the P resid en t o f the U nited S ta te s or the Governor o f t h is S ta te fo r a p u b lic f a s t , th an k sgivin g or h o lid a y provid ed , th a t the Governor in a p p oin tin g any day fo r a h o lid a y may provide whether or not the p u b lic sc h o o ls s h a ll c lo s e on such h o lid a y . (130:2158) This was a g rea t change from the a c tio n o f the 1933 le g is la t u r e which had cut down the number o f sch o o l h o lid a y s and taken away the power o f the Governor to d ecla re h o lid a y s. The change from the 1933 le g is la t io n was the a d d itio n o f February 12th , February 22nd, Septem b er 9 th , and November 11th. The a c tio n o f the le g is la t u r e was q u estio n ed , and the A ttorney General was asked to g iv e two o p in io n s. In op in ion number NS 4004 the q u estio n was r a ise d as to why the P o l i t i c a l Code, S e c tio n 10, did not recogn ize February 12th and February 22nd as le g a l h o lid a y s , but the School Code d id reco g n ize th ese two days as h o lid a y s. The A ttorney General h eld th a t the p ro v i sio n s o f the School Code were to be fo llo w ed . In op inion number NS 4070 the q u estio n was asked whether the sch o o ls had to be c lo se d on Monday February 23rd. The A ttorney General ru led th a t when George W ashington's b irth d ay f a l l s 132 on a Sunday, th e Monday fo llo w in g was a le g a l h o lid a y and must be observed by th e p u b lic schools* H o lid a y s. Chapter 694 o f th e s ta tu te s a ls o amended S ectio n 3.101 w hich s ta te d that February 12th , the birthday o f Abraham L in co ln , and February 22nd, the b irthd ay o f George W ashington, were to be observed as le g a l h o lid a y s. A ll p u b lic sc h o o ls throughout the s ta te were to h o ld s e s sio n s in the aftern oon o f the sc h o o l day n ext preceding each o f sa id h o lid a y s in order to a llo w th e customary e x e r c is e s in memory o f L incoln and W ashington. C o n stitu tio n Week. Chapter 785 o f the s ta tu te s added S e ctio n 3 .193 to th e School Code. The new s e c tio n e s ta b lis h e d the observance o f C o n stitu tio n Week in the p u b lic s c h o o ls . A ll p u b lic sch o o ls were d ir e c te d to in clude in the sc h o o l work on or near the an n iversary o f the ad option o f the C o n stitu tio n o f the U nited S ta te s e x e r c is e s and in s tr u c tio n fo r p u p ils o f the v a rio u s ages in the purposes, meaning, and importance o f the C o n stitu tio n o f the U nited S ta t e s , in clu d in g the B i l l o f R ig h ts. Chapter 844 o f the s ta tu te s amended S ectio n 3.761 which d e a lt w ith cou rses o f study in the elem entary s c h o o ls . In the p a st, c i v ic s in clu d ed a study o f the 133 C o n stitu tio n , but there was no m ention o f the D ecla ra tio n o f Independence. This was co rrected by the 1941 l e g i s la tu re when they req u ired the study o f c iv ic s to in clu d e not on ly the study o f the C o n stitu tio n but a ls o the study o f the D ecla ra tio n o f Independence. Education Code. The School Code o f 1929 was r e v ise d in 1943, and the name was changed to the Education Code. In the area o f req u ired in s tr u c tio n in D iv isio n 5 there was l i t t l e i f any change. The changes th a t were ■ made were in the in crea sed number o f d e t a ils th a t were added to the o r ig in a l p r o v is io n s . The in crea sed s tr u c tu rin g was found throughout D iv isio n 5 . One o f the b est examples was th e d e sc r ip tio n o f th e aims and purposes o f the course in p h y sic a l ed u ca tio n . S ec tio n 10119 o f A r tic le 6 d e a lt w ith p h y sic a l ed u cation aims and purposes. This s e c tio n fu rth er req u ired the sch o o ls to in clu d e the fo llo w in g o b je c tiv e s : (a) To d evelop organ ic v ig o r . (b) To provide neuro-m uscular tr a in in g . (c) To promote b o d ily and m ental p o is e . (d) To c o r r e c t p o stu ra l d e f e c t s . (e) To secu re the most advanced forms o f coordina t io n , s tr e n g th , and endurance. ( f ) To promote such d e sir a b le moral and s o c ia l q u a lit ie s as a p p r ec ia tio n o f the valu e o f co o p era tio n , s e lf-s u b o r d in a tio n , and obedience 134 to a u th o r ity , and high id e a ls , courage, and wholesome in te r e s t in tr u ly r e c r e a tio n a l a c t i v i t i e s . (g) To promote a h y g ien ic sc h o o l and h o m elife. (h) To secure s c i e n t i f i c su p erv isio n o f the s a n ita tio n and s a fe ty o f sch o o l b u ild in g s , p lay grounds, and a t h le t ic f i e l d s , and equipment th e r e o f. (93:2439) A r tic le 8 co n tain ed an a d d itio n to the requirem ent o f in s tr u c tio n in p u b lic s a fe ty and a c c id e n t p re v e n tio n . The added s e c tio n was S ectio n 10171 which sta te d th a t in str u c tio n be given in every elem entary and secondary sch o o l in the s ta te in the su b je c ts o f p u b lic sa fe ty and a ccid en t p rev en tio n , p rim arily devoted to avoidance o f the hazards upon s t r e e t s and highways. The p rescrib ed cou rses on the elem entary le v e l were n ot changed from the e a r lie r s t a t u t e s . The Education Code s t i l l con tained the p ost graduate cou rses fo r the elem en tary sc h o o ls. The^post graduate cou rses as p rescrib ed in S ectio n 10401 sta te d th a t they were to be b u sin ess E n g lish , commercial a r ith m e tic , commercial and p h y sica l geography, bookkeeping, U nited S ta te s h is to r y , and c i v i c s . In the high sch o o l requ ired co u r ses, there was s t i l l the requirem ent th a t the high sch o o l program be design ed to f i t the needs o f the stu d e n ts. The high sch o o l boards were s t i l l ab le to in clu d e tr a in in g in a t h l e t i c s , m ilita r y 135 d r i l l and t a c t i c s , manual t r a in i n g , dom estic scien ce and a r t , a g r i c u l t u r e , h o r t i c u l t u r e , d a iry in g , or o th e r voca t io n a l work. This was from S ectio n 10521, and th e re was no change from the previous s t a t u t e s . A ttorney G eneral Opinion No. NS 5068. S ev eral A ttorney G eneral ru lin g s were made in 1943. Opinion No. NS 5068 p e r ta in e d to E ducation Code S e c t io n 8286 which d e a lt w ith r e l i g i o u s r e l e a s e tim e. The q u e s tio n asked o f th e A tto rn ey G eneral was whether th e c h i l d was under th e c o n t r o l and s u p e r v is io n o f the s c h o o l a u t h o r i t i e s when r e l e a s e d from s c h o o l f o r r e l i g i o u s i n s t r u c t i o n e lse w h e r e . The A tto rn ey G eneral s t a t e d th a t the s c h o o l d i s t r i c t ' s r e s p o n s i b i l i t y f o r the c h ild r e n go in g to and from r e l i g io u s c l a s s e s was the same as when p u p ils were g o in g to and from home and s c h o o l. Second, the d i s t r i c t cannot r e q u ir e the r e l i g i o u s groups to take l i a b i l i t y in su r a n c e . T h ird , the d i s t r i c t cannot r e q u ir e a co u rse o f stu d y or in fo r m a tio n c o n cern in g th e competency o f the i n s t r u c t o r s from th e r e l i g i o u s grou p s. The fo u r th p o in t was th a t o n ly one p a r e n t 's co n se n t was n e c e s s a r y fo r a c h i l d to be r e l e a s e d to a tte n d r e l i g i o u s r e l e a s e c l a s s e s . In o p in io n No. NS 5183 the A tto r n e y G eneral answered the 136 q u estion about having r e lig io u s in str u c tio n on sch o o l property in the fo llo w in g manner: r e lig io u s in s tr u c tio n , even on r e le a se d tim e, could not be h eld on or in sch ool p roperty. A ttorney General Opinion No. N S 5533. In 1944 the A ttorney General was requested to give an opinion on the q u estio n o f whether the county board o f education could p ro h ib it the elem entary school a u th o r itie s from gran tin g a student a double promotion. In the op inion o f the A ttorney G eneral, the county board o f education had no a u th o rity to prevent the lo c a l sch o o l a u th o r itie s from gran tin g such a double prom otion. Correspondence co u rses. The le g is la tu r e in 1945 provided the governing board o f a d is t r ic t m aintaining one or more secondary sch o o ls the r ig h t to a llo w stu d en ts to take in s tr u c tio n by correspondence from the U n iv ersity o f C a lifo rn ia or other u n iv e r s ity or c o lle g e in C a lifo rn ia a c c re d ited for teach er tr a in in g . The courses as d escrib ed in S ectio n 10181 had to be those th a t were not or could not be o ffe r e d by the sc h o o l. When such in str u c tio n was provided fo r a stu d en t, i t must be a part o f the reg u la r course o f stud y. 137 Graduation requirem ents. In 1945 there was an a d d itio n made to S ectio n 10053 that was concerned w ith the g en era l requirem ents fo r graduation. This s e c tio n o f the Education Code a p p lied to the graduation req u ire ments o f the elem entary and secondary sc h o o ls. The ad di tio n was th a t a student must not only pass an exam ination on the C o n stitu tio n o f the United S ta te s , but must a ls o pass one in American h is to r y . A ttorney General Opinion No. 4 6 /3 6 . The A ttorney General in 1946 was q uestioned in regard to sch o o l p r in t in g shops and p r in tin g . In opinion 46/33 the A ttorney General s ta te d th a t the sch o o l p rin t shops could not com p ete w ith p riv a te b u sin ess p r in tin g . They could p rin t only m a teria ls fo r ’’in s tr u c tio n ” or ’’ student a c t iv it y ." They cou ld not s e l l the m a teria l p rin ted . However, one sch ool cou ld p rin t for another sch ool in the same d is t r i c t . I t was up to the sch o o l a u th o r itie s to determine what was to be p rin ted . Course o f study fo r elem entary s c h o o ls . The course o f study in the elem entary sch ool p rescrib ed in S ectio n 10302 was amended by the 1947 le g is la t u r e . The a d d itio n was not an expansion o f the required su b jec ts but was as 138 fo llo w s : . . . whenever any part o f " tra in in g for h e a lth fu l liv in g " c o n f lic t s w ith the r e lig io u s b e lie f s o f the parent or guardian the p u p il may be excused from the part o f the tr a in in g which c o n f lic t s w ith such r e lig io u s b e l i e f s . (133:2771) A ttorney General Opinion No. 4 7 /2 6 6 . A new s e c tio n was added to the Education Code in 1947 (133:2783). This was S ectio n 10201 which sta te d the aims and purposes o f a course o f in str u c tio n in autom obile d river ed u cation . The purposes were to develop a knowledge o f th ose p ro v i sio n s o f the V eh icle Code and other laws o f the s ta te r e la tin g to the op eration o f motor v e h ic le s ; a proper acceptance o f personal r e s p o n s ib ility in t r a f f i c ; and a tru e a p p recia tio n o f the ca u ses, se r io u sn e ss, and conse quences o f t r a f f i c a c c id e n ts. In S ectio n 10202 the aims and purposes o f a course o f in str u c tio n in autom obile d riv er tr a in in g were to develop the knowledge, a t tit u d e s , h a b its , and s k i l l s n ecessary for the sa fe op eration o f motor v e h ic le s . In 1947 the A ttorney General was ques tio n ed concerning the d riv er ed u cation and d riv e r tra in in g S ectio n s 10200 and 10201. In op in ion 47/266 the A ttorney General sta te d th a t i f a course in d riv er education was m aintained, a l l p u p ils must take i t p rio r to graduation. 139 Furthermore, the sch o o l board had the a u th o rity to d is con tin u e d riv e r ed u cation and d riv er tr a in in g c la s s e s . Gordon v . the Board o f Education o f the C ity o f Los A n g eles. The problem o f r e le a s e d tim e fo r r e lig io u s in s tr u c tio n reached the cou rts in 1947 in the case o f Gordon v . the Board o f Education o f the C ity o f Los A ngeles (178 P2d 4 8 8 ), in which R ita Gordon wanted the Board o f Education to d isco n tin u e the r e le a s e d tim e plan in Los A n g eles, claim in g th a t i t was u n c o n s titu tio n a l. The cou rt s ta te d th a t the s t a tu t e s provided th a t p u p ils w ith w r itte n consent o f parents be excused from sc h o o ls to p a r tic ip a te in r e lig io u s e x e r c is e s or to r e c e iv e r e l i giou s in s tr u c tio n . This did not v io la t e th a t p ro v isio n o f the s t a te c o n s titu tio n which guaranteed free e x e r c is e s » and enjoyment o f r e lig io u s w orship. The cou rt a ls o s ta te d th a t the Los A ngeles plan did not v io la t e the s e c tio n d ea lin g w ith ap p rop riation o f p u b lic monies fo r support o f any s e c ta r ia n or denom inational group, even though the expense o f the p rep aration o f lit e r a tu r e and r e g is t r a tio n cards was paid by the sc h o o l system . A ttorney General Opinions Nos. 48/37 and 4 8 /8 5 . In 1948 th ere were s e v e r a l A ttorney General r u lin g s p erta in in g 140 to curriculum and in s tr u c tio n . In opinion No. 48/37 the A ttorney General answered the q u estion o f whether the requirem ents fo r graduation in courses th a t in clu d ed the U nited S ta te s C o n stitu tio n and U nited S ta tes h isto r y could be taken o u tsid e the s t a t e . The A ttorney General s ta te d th a t the stud en t could tr a n sfe r h is p revious courses in U nited S ta te s C o n stitu tio n and U nited S ta te s h is to r y and th a t th ese cou rses would meet the graduation requirem ents in C a lifo r n ia . In opinion No. 4 8 /8 3 , the q u estion was asked whether r e lig io u s re lea sed time was c o n s titu tio n a l. I t was s ta te d th at r e lig io u s r e le a se d tim e was c o n s t it u t io n a l, but exp lain ed th a t the McCollum case (396 111 14) had c a s t a cloud o f doubt on the is s u e . D river education and d riv er tr a in in g . In 1949 the le g is la tu r e amended the Code s e c tio n p erta in in g to d riv er education and d riv er tr a in in g . In S ectio n 10201 the change in the aims and purposes o f autom obile d riv er education was a major one. The se c tio n sta te d th a t the aims and purposes o f autom obile d riv er education should be to develop a knowledge o f the required p ro v isio n s s ta te d in S ectio n 10201. The im portant p oin t in the change was th at the le g is la t u r e in ser te d the mandatory 141 word " s h a ll." The le g is la t u r e s ta te d in S e ctio n 10202 th a t any d i s t r i c t th a t m aintained a secondary sc h o o l may e s t a b lis h and m aintain autom obile d riv er tr a in in g fo r p u p ils e n r o lle d in the reg u la r fu ll-tim e day program. P ro h ib ited in s t r u c t io n . The le g is la t u r e in 1951 amended S ectio n 10051, which s ta te d th a t a l l p u b lic and p riv a te sc h o o ls lo c a te d w ith in the s t a te should g iv e reg u la r cou rses o f in s tr u c tio n in the C o n stitu tio n o f the U nited S ta te s and in American h is t o r y , in clu d in g the study o f American in s t it u t io n s and id e a ls , and o f the p r in c ip le s o f s ta te and lo c a l government e s ta b lis h e d under the Con s t it u t io n o f the s t a t e . The im portant change was the in c lu s io n o f the study o f lo c a l government. A new s e c tio n was added to the area o f p ro h ib ited in s tr u c tio n , S e c tio n 8275, which sta te d : No tea ch er g iv in g in s tr u c tio n in any sc h o o l, or on any property b elo n g in g to any a g en cies in cluded in the P u b lic School System , s h a ll advo ca te or tea ch communism w ith in te n t to in d o c tr in a te any p u p il w ith or in c u lc a te a p referen ce in the mind o f any p u p il fo r , such d o ctrin e does not in ten d to prevent the advocacy o f , and in c u lc a tio n and in d o c tr in a tio n in to communism as i s h e r e in a fte r d e fin e d , fo r the purposes o f undermining the p a tr io tism fo r , and the b e l i e f in , the Government o f th e U nited S ta t e s , and o f t h is S ta te in the minds o f the p u p ils in the P u b lic School System . 142 For the purposes o f t h is s e c tio n , communism is a p o l i t i c a l theory th a t the p rese n tly e x is tin g form o f government o f the United S ta tes or th is S tate should be changed, by fo r c e , v io le n c e , or other u n c o n stitu tio n a l means, to a t o ta lita r ia n d ic ta to r sh ip which is based on the p r in c ip le s o f communism as expounded by Marx, Lenin and S ta lin . (135:1692) Another a d d itio n to th e Code was S ectio n 10056 which perm itted an outdoor sc ie n c e education program. The a d d itio n was not mandatory but p erm issiv e. A ttorney General Opinion No. 5 1 /2 5 4 . In 1952 the A ttorney General was q uestioned about the r ig h t o f a governing board to suspend p u p ils who refu sed to take p h y sica l education courses i f the p rescrib ed course was one to which no reasonable o p p o sitio n was based on moral or r e lig io u s grounds and to refu se them th e ir high sch ool diplom as. In opinion No. 51/254 the A ttorney General sta te d th a t the governing board had a r ig h t to suspend or to deny h igh school diplomas to those students who refu sed to take p h y sic a l ed u cation , provided th a t the stu d en ts did not o b je c t on r e lig io u s or moral grounds. Junior high sch o o l course o f stu d y . In 1953 the le g is la tu r e made an extrem ely in te r e s tin g amendment to the e x is tin g r e g u la tio n in regard to the ju n io r high sch ool 143 course o f stu d y . S e ctio n 19593 was now to read th a t th e course o f study in ju n io r high sch o o ls should be design ed to f i t the needs o f the p u p ils o f the seven th and e ig h th , or the se v en th , e ig h th , n in th , and ten th grad es. This change caused the ju n io r h igh sch o o l course o f study to be th e same as th a t o f the high sc h o o l. A d d ition s to the Code. Another development took p la ce in 1953 which once again dem onstrated the in te r e s t and concern o f the le g is la t u r e fo r the ed u cation o f the c h ild re n o f C a lifo r n ia . The Assembly Concurrent R esolu t io n No. 56 was the p o in t o f in t e r e s t . I t sta te d : Whereas, There are many new r e sid e n ts o f t h is S ta te having no knowledge o f the h is to r y o f the Bear F lag o f C a lifo r n ia and Whereas, the Bear Flag stan d s as a symbol and reminder th a t the p ion eer not only won the independence o f C a lifo rn ia as a rep u b lic so th a t i t could jo in the Union o f S ta te s ; but a ls o su p p lied the w ealth in gold which made p o s s ib le the p reserv a tio n o f th a t Union and Whereas, the ch ild re n o f t h is S ta te ; as i t s fu tu re le a d e r s, should be taught the h is to r y o f the Bear F lag; now th e refo re be i t . R esolved , th a t the Department o f Education i s hereby requ ested to in clu d e in the p u b lic sch o o l curriculum in s tr u c tio n in the h is to r y o f the Bear F lag. (136:4200) For some reason t h is r e s o lu tio n was never put in to e f f e c t . In 1955, S e c tio n 8255 was added to the Code; i t sta te d : 144 No board, com m ission, or any p u b lic o f f ic e r or employee o f the S ta te o f any d i s t r i c t , county, c it y and county, or c it y i s lia b le fo r any damage or in ju ry to any person r e s u ltin g from the p u b lic a tio n o f any r e p o r ts, reco rd s, p r in ts or photographs o f or concerning any person con v ic te d o f v io la tio n o f any law r e la tin g to the u se , s a le , or p o sse ssio n o f n a r c o tic s , to sch ool a u th o r itie s fo r use in in str u c tio n on the sub j e c t o f n a r c o tic s or to any person when used fo r the purpose o f gen eral education; provided, however, that the name o f any person concerning whom any such r e p o r ts , reco rd s, p r in ts , or photo graphs are used s h a ll be kept c o n fid e n tia l and every reasonable e f f o r t s h a ll be made to m aintain as c o n fid e n tia l any inform ation which may tend to id e n tify such person. (137:1210) The new s e c tio n , i t would appear, was a c o r r e c tiv e measure intended to a id the sch ool d i s t r i c t s in th e ir com pliance w ith other Code p ro v isio n s th a t required in str u c tio n in n a r c o tic s . Another s e c tio n th at was amended by the 1955 le g is la tu r e was S ectio n 10171. This s e c tio n d e a lt w ith in str u c tio n in p u b lic s a fe ty and a ccid en t p reven tion . The change in the se c tio n was th a t s p e c ia l emphasis was to be given to avoidance o f hazards upon s t r e e t s and highways. A ttorney General Opinions Nos. 53/174 and 5 3 /2 6 6 . The A ttorney General was asked a q u estio n which did not p erta in d ir e c tly and com pletely to in s tr u c tio n . The opinion given was a lib e r a liz a tio n o f previous r u lin g s on 145 r e lig io u s o rg a n iz a tio n s and t h e i r r e la tio n s h ip s w ith the sc h o o ls. In o p in io n No. 53/174 in 1955 the A ttorney G eneral s ta te d th a t th e c o n s titu t io n does not prevent the s a le o r le ase o f p u b lic p ro p e rty to r e lig io u s o rg an iz a tio n s fo r r e lig io u s p u rp o ses, provided le g a l procedure fo r such sa le or le a s e i s complied w ith , and the p ro p erty was n o t needed fo r p u b lic u s e , o r th e re was no i n t e r f e r ence w ith the prim ary p u b lic purpose fo r which the p ro p erty was h e ld . There was, however, no le g a l a u th o riz a tio n fo r s h o rt term le a se s o f sch o o l p ro p erty fo r p eriods of a few hours fo r r e lig io u s o r o th e r p urposes. School p ro p erty m ight be used fo r m eetings o f v o lu n ta ry stu d e n t r e lig io u s o r g a n iz a tio n s , i f th e re was no endorsement of such a s so c ia tio n s by school a u t h o r i t i e s and no in te rfe re n c e of th e re g u la r ed u c atio n program of the sch o o l. Another q u e stio n asked p e rta in e d to the same s u b je c t. In opinion No. 53/266 th e A ttorney G eneral s t a t e d th a t the B ible could n o t be read in p u b lic school c la s s e s fo r r e lig io u s in s t r u c tio n . I t m ight be used fo r r e fe re n c e , l i t e r a r y , h i s t o r i c a l or o th e r n o n -re lig io u s purposes. Second, the A ttorney G eneral s ta te d t h a t the Gideon B ible could not be d is t r ib u t e d through th e p u b lic school system. In the same ru lin g the A tto rn ey G eneral s a id th a t r e lig io u s prayers could not be made a part o f the curriculum o f the p u b lic sc h o o l. As an example, he c ite d the prayer given in New York p u b lic sch o o ls th at has r e c e n tly been d eclared u n c o n stitu tio n a l by the U nited S ta te s Supreme Court. Work exp erien ce ed u ca tio n . In 1957 the le g is la tu r e took a ctio n in the area o f work exp erien ce ed u cation. In S ectio n 10231 i t was sta te d : The governing board o f any d is t r ic t m aintaining a high sch o o l or ju n io r c o lle g e may (a) Provide fo r the in str u c tio n o f p u p ils in the s k i l l s , a t tit u d e s , and understandings n eces sary to su ccess in employment by means o f course work exp erien ce education as provided in t h is a r t i c l e . (b) Provide for guidance and su p erv isio n pro cedures designed to in su re maximum education b e n e fit to stu d en ts from placement in su ita b le work exp erien ce education co u rses. (138:2926) A viation ed u cation . In 1957 a se c tio n was added which was concerned w ith a v ia tio n ed u cation . The impor ta n t p oint in t h is se c tio n was not the content o f the s e c tio n but rath er i t s ten ab le requirem ent. S ectio n 10221.1 s ta te d th at the governing board o f each d i s t r i c t was en couraged to develop aims and purposes o f a v ia tio n educa tio n . The s e c tio n ad vised d is t r ic t s to in te g r a te a v ia tio n 147 con cepts throughout the elem entary sch o o l in the areas o f s c ie n c e , s o c ia l s tu d ie s , and a r ith m e tic . The ju n io r high sch o o l was a lso to do the same, but on the high sch o o l le v e l there were to be e le c t iv e cou rses in clu d in g a ir tr a n sp o r ta tio n , v o c a tio n a l tr a in in g , econom ic, s o c ia l and p o l i t i c a l im p lica tio n s o f a v ia tio n , the sc ie n c e o f f l i g h t , h is to r y o f a v ia tio n , and f lig h t exp erien ce where appropri a te . The use o f the word "encourage” rath er than the man datory " sh a ll" was o f p a r tic u la r in t e r e s t . I f th is had been a mandatory r e q u ir e m e n ta g reat deal would have been added to elem entary and secondary curriculum . Work exp erien ce and p h y sic a l ed u ca tio n . In 1959 se v e r a l amendments were added to the Code. The work ex p erien ce ed u cation program was amended to some e x te n t. In S ectio n 8355 i t was sta te d th a t work exp erien ce in clu d ed the employment o f p u p ils in p art-tim e jobs which had educa tio n a l value fo r the stu d en ts and were coordinated in to the sch o o l program. P h y sica l ed u cation was a su b je c t for a l l stu d en ts who were p h y s ic a lly ab le to p a r tic ip a te . S e ctio n 8162.1 made i t p o ssib le fo r th ose stu d en ts who p a r tic ip a te d in a t h le t ic s to be excused from the reg u la r p h y sic a l educa- 148 tio n c la s s e s . Another development was the Code p ro v isio n th a t h igh sch o o l stu d en ts who were capable cou ld take c la s s e s a t a ju n io r c o lle g e . This was s ta te d in S e c tio n 3224. A ttorney General Opinion No. 5 9 /2 9 6 . The A ttorney General in 1960 issu e d op inion No. 59/296 in answer to a q u estio n about the books th a t a lib r a r y cou ld buy. He s ta te d th a t Education Code S ectio n 8453 as amended by Chapter 1816, C a lifo rn ia S ta tu te s 1959, p erm itted p u b lic sch o o l a u th o r itie s to purchase books fo r sc h o o l lib r a r ie s as they in th e ir p r o fe s s io n a l judgment deemed n e c e ssa r y , unburdened by co n sid er a tio n s o f the s e c ta r ia n , p a r tisa n , or denom inational ch aracter o f the p u b lic a tio n s . Educa- tio n Code, S ectio n 8453 did not c o n f lic t w ith the p ro v i sio n s o f the C o n stitu tio n , A r tic le IX, S e c tio n 8 , i t was d ecla red . Course o f study fo r elem entary g ra d es. In 1961 the Education Code was r e v ise d again and a number o f new requirem ents were added. One o f the new requirem ents was S e ctio n 5211, which requ ired every sc h o o l to conduct an appropriate e x e r c is e in p a tr io tism . The Pledge o f A lle gian ce to the Flag o f the U nited S ta te s o f America was a 149 s a t is f a c t o r y e x e r c is e . S ectio n 7604, the course o f study fo r the elem entary s c h o o ls , was by fa r the most d e ta ile d p r o v isio n ever w r itte n in to law in C a lifo r n ia . S ectio n 7604 s ta te d : (a) Beginning in grade 1, and con tin u in g through grade 6 or 8 as the case may b e, in s tr u c tio n s h a ll be given in a l l the fo llo w in g : (1) Reading (2) W riting (3) S p e llin g (4) A rith m etic, w ith emphasis on b a sic p rin c ip le s and tech n iq u es. (b) Beginning not la t e r than grade 4 and co n tin u in g through grade 6 or 8 as the case may b e, in s tr u c tio n s h a ll be given in a l l o f the fo llo w in g : (1) E n g lish as a sep a ra te su b ject w ith emphasis on thoroughness, and as a d is c ip lin e sep a ra te from the su b ject o f s o c ia l s tu d ie s . (2) Geography. (3) H isto ry , in clu d in g the e a r ly h is to r y o f C a lifo rn ia and the h is to r y o f the U nited S ta te s . (c) Beginning n ot la t e r than grade 6 , and co n tin u ing through grade 6 or 8 , as the case may b e, in s tr u c tio n s h a ll be given in a l l o f the fo llo w in g : (1) C iv ics (2) A fo reig n language or languages (3) N atural sc ie n c e (4) H ealth (d) The course o f study in the elem entary sch o o ls s h a ll in clu d e in s tr u c tio n , in the grade or grades p rescrib ed by the board o f ed u cation o f the c i t y , cou n ty, or c it y and cou n ty, in a l l o f the fo llo w in g : (1) Art (2) Music (e) Such oth er s t u d ie s , not to exceed th r e e , as may be p rescrib ed by the board o f ed u cation o f the c i t y , 150 cou n ty, or c it y and county. N otw ithstanding oth er p ro v isio n s o f t h is s e c tio n to the co n tra ry , a fo r e ig n language or languages may but i s n ot requ ired to be in clu d ed in the course o f study in the elem entary sch o o ls u n t il June 30, 1965, and on and a f te r July 1, 1965, such course o f study s h a ll in clu d e a fo r e ig n language or languages b eg in n ing not la t e r than grade 6 and co n tin u in g through grade 6 or 8 , as the case may b e. The L e g isla tu r e here d ecla res th a t i t i s the p o lic y o f the S ta te to fo s te r and encourage fo r e ig n language programs in the elem entary and secondary sch o o ls by which the ch ild re n o f t h is S ta te lea rn to speak and w rite fo r e ig n languages w ith the same f a c i l i t y w ith which the c h ild re n educated in sc h o o ls o f oth er co u n tr ies speak and read fo r e ig n la n g u a g es, in order th a t the ch ild re n o f t h is S ta te be adequately prepared to undertake th e ir d u tie s as American c i t i zens in a world in which the a b i l i t y to communicate w ith p eop les o f oth er co u n tr ies in t h e ir own tongue i s o f e v e r -in c r e a sin g im portance. (95:372) Course o f study fo r the secondary l e v e l . In 1961 fo r the f i r s t tim e in many years the course o f study was changed fo r th e secondary l e v e l. The s e c tio n th a t co n ta in ed th ese requirem ents was S ectio n 7700. I t s ta te d : The course o f study fo r grades 7 and 8 o f each elem entary sc h o o l, and each ju n io r h igh sc h o o l, h igh s c h o o l, or grades 11 and 12 o f a fo u r-y ea r ju n io r c o lle g e s h a ll be prepared under the d ir e c tio n o f the governing board having c o n tr o l th e r e o f and s h a ll be su b jec t to the approval o f the S ta te Board o f E ducation. The course o f study s h a ll meet the requirem ents o f t h is s e c t io n . In a d d itio n to cou rses oth erw ise requ ired by law , the course o f study s h a ll req u ire o f a l l p u p ils in grades 7 to 12 in c lu s iv e : 151 (a) F ive years o f in s tr u c tio n in the use o f E n g lish , design ed to teach the stu d en t to read ra p id ly and p e r c e p tiv e ly , to w rite c le a r ly and c o r r e c tly , and to p resen t id eas o r a lly . Such in s tr u c tio n s h a ll in clu d e the p r in c ip le s o f grammar and punctuation as instrum ents o f reading and w r itin g . A lso a core o f reading designed to fa m ilia r iz e the stu d en t w ith the v a r ie ty o f l i t erary forms and to improve h is reading a b i l i t y s h a ll be tau gh t. (b) F ive years o f h is to r y commencing w ith grade 7, to in clu d e a l l o f the fo llo w in g : (1) Twenty sem ester p eriods o f American h is to r y em phasizing American in s t it u t io n s and id e a ls , and C a lifo r n ia h is to r y . (2) Twenty sem ester p eriod s o f world h is to r y , the h is to r y o f W estern C iv iliz a t io n , and world geography. (3) Ten sem ester p eriods o f American govern ment em phasizing p r in c ip le s o f the Con s t it u t io n and the D ecla ra tio n o f Inde pendence, and the p r in c ip le s o f s t a te and lo c a l government under the C o n stitu tio n o f t h is S ta te . (95:374) There was an apparent lack o f agreement between the two s e c t io n s , in th a t the elem entary s e c tio n requ ired the study o f a fo r eig n language to b egin in the s ix th grade, but in the secondary s e c tio n the le g is la t u r e f a ile d to take in to account whether the fo reig n language req u ire ment should be ca r rie d through the ju n io r high sc h o o l. There was a ls o a change in the course o f study for the fou r-year high s c h o o ls . In the p a s t, S ectio n 7752, which was concerned w ith t h is problem, s ta te d th a t the course o f 152 study was to be designed to f i t the needs o f the stu d e n ts. The s e c tio n now reads th a t the course o f stu d y , w hile designed to meet the needs o f the p u p il, would comply w ith S ectio n 7700. Another new s e c tio n th a t appeared in th e Code was S ectio n 7901. I t sta te d th a t in a l l p u b lic and p riv a te sch o o ls lo c a te d w ith in the s t a t e , th ere were to be given reg u la r courses o f in s tr u c tio n in th e C o n stitu tio n o f the S ta te o f C a lifo r n ia , and in C a lifo rn ia h is to r y and c i v i c s . T estin g program. S e c tio n 12821 was a ls o new. This s e c tio n s e t up a sta te -w id e t e s t in g program, in c lu d ing achievem ent and in t e llig e n c e t e s t s . The S ta te Board o f Education was a ls o to c e r t if y and approve a l i s t o f achievem ent and in t e llig e n c e t e s t s . This s e c tio n e s ta b lis h e d fo r the f i r s t time in the h is to r y o f C a lifo rn ia education a sy stem a tic achievem ent and in te llig e n c e t e s t ing program fo r a l l stu d en ts in a l l grades. People o f C a lifo rn ia v . John Roger S h in n . In 1961 the case of th e People o f C a lifo rn ia v . John Roger Shinn (16 Cal R ptr 165) was r e l a t e d to an e x te n t to cu rricu lu m and in s t r u c tio n . In th is case the p a re n t had withdrawn h is c h ild re n from school and was te a c h in g them a t home. 153 The court h eld th a t the takin g o f courses provided by correspondence sch o o ls was not education in "private f u l l time day sc h o o ls ," which would e n t it l e the ch ild ren to exemption from attendance a t p ub lic sc h o o ls. The court a ls o sta te d th a t a primary purpose o f the ed u cation al system was to tr a in sch o o l ch ild ren in good c itiz e n s h ip , p a tr io tism , and lo y a lty to the s ta te and n ation as a means o f p ro te ctin g the p u b lic w e lfa r e . This was not being ca rrie d out in t h is in sta n c e , i t was ru le d , fo r n e ith e r parent who a cted as teach er had a v a lid s ta te c r e d e n tia l, nor were the ch ild ren taught C a lifo rn ia h is to r y or c i v i c s . A ttorney General Opinions Nos. 61/237 and 6 2 /4 8 . The A ttorney General in 1962 was asked se v e r a l q u estion s p erta in in g to curriculum and in s tr u c tio n . In opinion No. 61/237 the q u estio n was asked whether a p riv a te sch ool student could a tten d p u b lic sch o o l c la s s e s . The opinion s ta te d th a t a c h ild who was a tten d in g a p riv a te sc h o o l, and by reason th e r e o f le g a lly exempted from compulsory attendance in fu ll-tim e p u b lic sc h o o ls , did not have an en forceab le r ig h t to a tten d one or more c la s s e s o f h is ch oice in a p u b lic sc h o o l. I t was s ta te d , however, th a t a d is t r ic t might a llo w such a student to atten d one 154 or more o f i t s c la s s e s . In op inion No. 62/48 the A ttorney General was asked four q u estio n s: (1) W as the in str u c tio n in c iv ic s required by Education Code S ectio n 7901 lim ite d to C a lifo rn ia c iv ic s or was in s tr u c tio n in c iv ic s in gen eral p erm issib le? (2) Must a regu lar course in the S ta te C o n stitu tio n and in C a lifo rn ia h isto r y and c iv ic s be g iv en , or was mere in s tr u c tio n in those su b jec ts now required? (3) Must in str u c tio n in the C o n stitu tio n o f the U nited S ta te s and the C o n stitu tio n o f the S ta te o f C a lifo rn ia now be given in grades one to six ? (4) Was c iv ic s s t i l l a required su b ject in grades one through fiv e? In answer to th ese four q u e stio n s, the A ttorney General sta te d : (1) The Education Code S ectio n 7901 required th a t in str u c tio n be given in C a lifo rn ia c iv ic s as d istin g u ish e d from c iv ic s in g en era l. (2) S ectio n 7901 required th at in str u c tio n be given in C a lifo rn ia c iv ic s - - n o t th a t a regu lar course be g iven . (3) No sta tu to ry p ro v isio n e ith e r requ ired or forbade th at in str u c tio n be given s p e c if ic a lly in the C o n stitu tio n o f the U nited S ta te s and the S ta te C on stitu tio n b efore grade s i x , except in so fa r as the p r in c ip le s o f th ese documents were n e c e s s a r ily in clu d ed in the c iv ic s in s tr u c tio n required by S ectio n 7605. (4) 155 In stru ctio n in c iv ic s and language study should be pro vid ed in grades one through e ig h t. These su b jec ts should be included among th ose to which a minimum o f 50 per cent o f each sch o o l s h a ll be devoted in grade one to s ix and a minimum o f 600 m inutes in grades seven and e ig h t, pursuant to S ectio n 7605. A ttorney General Opinion No. 6 2 /5 0 . In opinion No. 62/50 the A ttorney General was asked fo r in te r p r e ta tio n o f S ectio n 7604 which req u ires a fo reig n language to be tau gh t. The A ttorney General sta te d th a t the elem entary sch o o l governing boards were au th orized to s e le c t the fo reig n languages to be taught in any or a l l elem entary sch o o ls o f the d i s t r i c t , pursuant to Education Code Sec tio n 7604 and 7607. H e a ls o sta te d th a t the adoption o f c e r ta in fo reig n language textbooks by the S tate Board o f Education did not requ ire th a t courses be provided only in the fo reig n languages covered by those textb ook s. A ttorney General Opinion No. 6 2 /5 1 . The la s t A ttorney General opinion to be reported in th is chapter was No. 6 2 /5 1 . This op inion was requested because o f se v e r a l q u estio n s th a t had a r ise n over the e f f e c t s o f variou s changes in the Code and th e ir r e la tio n to high 156 sch o o l graduation requirem ents. The s e c tio n s in q u e stio n were 7701, 7702, 7751, and 7752. The A ttorney G eneral sta te d th a t th ese changes had no immediate e f f e c t on graduation requirem ents, and that th ese s e c tio n s were d ir e c te d rath er to the governing boards re sp o n sib le fo r preparing cou rses o f stud y. Chapter Summary This chapter has review ed the h is to r y o f l e g i s l a tio n in curriculum and in str u c tio n in C a lifo r n ia . The h is t o r ic a l development o f c u r r ic u la r le g is la t io n has been presen ted in ch ro n o lo g ica l order to provide a b e tte r understanding o f how laws a f fe c t in g curriculum and in s tr u c tio n have p rogressed through the y e a r s. The developm ent o f C a lifo rn ia c u r r ic u la r le g is la t io n has been seen to have been sporadic in n a tu re. At tim es th ere was much le g is la t io n a f fe c t in g sch o o l curriculum in the s t a t e , and a t oth er tim es th ere was none a t a l l . The f i r s t course o f study p rescrib ed in 1850 was much lik e th a t o f the sc h o o ls in the New England s t a t e s . Over the y e a r s , there has been a decrease in the amount o f tim e req u ired to be spent on the b a sic su b jec ts such as rea d in g , w r itin g , and s p e llin g . However, there has been an in cr e a se in the 157 number o f su b je c ts to be ta u g h t. The even ts o f h is to r y in the s ta te and n a tio n l e f t th e ir mark on the curriculum . Severe crop damage brought about by hordes o f in s e c ts r e s u lte d in the in tro d u ctio n o f the course in " p r a c tic a l entomology" in the s c h o o ls . Wars brought about cou rses s t r e s s in g p a tr io tism . Pressure groups a ls o had t h e ir e f f e c t on the le g is la t io n concerning curriculum and in s tr u c tio n . Where q u estio n s arose concerning th e carryin g out o f l e g i s l a t i v e m easures, th e A ttorneys General have been p resen ted w ith a number o f problems fo r in te r p r e ta tio n . One q u e stio n th a t kept rep ea tin g i t s e l f has been the problem o f a llo w in g the sc h o o l d i s t r i c t s th e r ig h t to a llo w the use o f th e ir f a c i l i t i e s fo r r e lig io u s e x e r c is e s . The A ttorneys General have been c o n s is te n t in not a llo w in g the p u b lic sc h o o l b u ild in g s to be used fo r any r e lig io u s e x e r c is e s . One o f the b a s ic problems th a t was so lv e d by an A ttorney G eneral's r u lin g was th e j u r is d ic t io n a l d is pute between the power o f th e lo c a l sch o o l board and the powers o f the county through i t s ch a rter . The A ttorney General ru led th a t s t a te laws govern sch o o l d i s t r ic t s and take precedence over county or m un icipal law s. This gave the j u r is d ic t io n to th e sch o o l d i s t r i c t because i t 158 was le g a lly an in stru m en t o f the s t a t e . The m ajor c o u rt cases th a t a f f e c te d th e cu rricu lu m o f th e sch o o ls p e rta in e d fo r the most p a r t e i t h e r to r e le a s in g stu d e n ts from a school a c t i v i t y , o r to r e lig i o u s i n s t r u c t i o n . The c e n tr a l problems co n ta in e d in s p e c if ic c o u rt cases were review ed. Whenever p o s s ib le , th e c o u rts h e ld th a t th e p a re n t had the r ig h t to decide what course o f study o r i n s t r u c tio n was b e s t f o r h is c h i ld , as long as i t d id n o t c o n f l i c t w ith th e b e s t i n t e r e s t s o f s o c ie ty and th e w e lfa re o f th e s t a t e . In c o n c lu sio n , i t may be s a id th a t th e laws have r e f l e c t e d the c lim a te of p u b lic o p in io n a t the tim e they were w r itte n . Since the p u b lic ex p ressed a g r e a te r con cern f o r ed u c atio n a t tim es d uring o r a f t e r a c r i s i s , i t was seen th a t more l e g i s l a t i o n was p re se n te d during those p e rio d s . One might wonder w hether the people f e l t a t th e se tim es o f c r i s i s th a t s o lu tio n s to t h e i r problems could be found through ed u c atio n . C H A PTER IV PR O C E D U R E FO R T H E INVESTIGATION In tro d u ctio n The purpose o f the survey phase o f the in v e s tig a tio n was to determ ine from a d m in istra to rs in s e le c te d sc h o o l d i s t r i c t s throughout the s t a te o f C a lifo r n ia what major problems in curriculum and in s tr u c tio n were crea ted fo r them by c u r r ic u la r le g i s l a t i o n . The survey was a ls o d esign ed to examine the reasons fo r the problems th a t had d eveloped, and the rem edies th a t a d m in istra to rs through out the s t a t e would su g g est to c o r r e c t them. Procedure D esign o f the Study The method to be used in the in v e s tig a tio n was determ ined in part by the nature o f th e q u e stio n s th a t were to be asked. The most common technique fo r o b ta in in g in form ation o f the type sought in t h is study was found to 159 160 be the q u e stio n n a ir e . This d a ta -g a th erin g tech n iq u e, however, did not appear to be w e ll su ite d to the d esign o f the p resen t in v e s t ig a t io n . The len g th o f the m a te ria l and the d e ta ile d in s tr u c tio n s th a t were req u ired , i t ap peared, would undoubtedly cu t down the number o f retu rn s to a p oin t where the r e s u lts would have l i t t l e meaning. These and oth er problems in h eren t in th e q u e stio n n a ire method precluded use o f t h is tech n iq u e. A more in d iv id u a liz e d method was in d ic a te d , such as i s in herent in an in terv iew s it u a t io n . For t h is reason i t was d ecided to u t i l i z e the case study method in gath erin g the d ata. This approach w ould, i t was b e lie v e d , provide the resea rch ers w ith g re a te r depth o f in s ig h t in to the problem s. Another advantage was i t s su p e r io r ity over th e q u e stio n n a ire method in p rovid in g a p erso n -to -p erso n r e la tio n s h ip between in v e s tig a to r and resp on d en t, and a b e tte r communi c a tio n s it u a tio n . Respondents cou ld r a is e q u e stio n s con cern in g any p o in ts they d id not understand. The in t e r view er could p erceiv e the a ttitu d e s and f e e lin g s o f the in terv iew ee as he rea cted to q u e stio n s. Problems o f sem antics cou ld be so lv ed e a s ily w ith the case study meth od. An in te r e s tin g advantage o f t h is method was the op portu nity i t a ffo rd ed fo r the in te rv ie w ers to meet 161 oth er a d m in istra to rs in the f i e l d . Development o f an In te rv ie w Guide P rior to the development o f an in te rv ie w guide fo r use w ith the a d m in istr a to rs, i t was n ecessa ry to examine the 1961 Education Code and lo c a te and record a l l s e c tio n s th a t p erta in ed to curriculum and in s tr u c tio n in the s c h o o ls . From t h is ex h a u stiv e exam ination a l i s t was com piled o f a l l s e c tio n s in the Code th a t were r e la te d to the areas o f curriculum and in s tr u c tio n as d efin ed in t h is stu d y , in both elem entary and secondary sc h o o ls . The same procedure was used w ith the A d m in istrative Code, T it le F iv e , and w ith the c o n s titu tio n o f the s ta te o f C a lifo r n ia . Upon com pletion o f the c o lle c t io n o f th ese variou s s e c t io n s , the r e s u ltin g l i s t o f item s was found to be extrem ely la r g e; t h is would have made the in s tr u ment too unw ieldy fo r use as an e f f e c t iv e in te rv ie w g u id e. In order to make the instrum ent more s u it a b le , i t was n ecessa ry to reduce the number o f item s; t h is r e quired th a t some b a sis o f s e le c t io n be e s ta b lis h e d so th a t the com p ilation cou ld be a sse sse d in terms o f m eaningful c r it e r i a . The f i r s t c r it e r io n a p p lied was 162 th a t only those item s th at were concerned w ith what might be c a lle d ordinary c la s s e s would be in clu d ed . The s p e c ia l programs, th e r e fo r e , were o m itted , for they concerned only a sm all percentage o f the e n tir e sch ool population and in general were su b jec ts o f p erm issive le g is la t io n . The second c r ite r io n was the in c lu sio n o f only those se c tio n s th at were mandatory or p r o h ib itiv e in n atu re. The s e c tio n s th at were to be given co n sid era tio n , th e r e fo r e , must include the mandatory word ’'s h a ll”; oth erw ise, they were to be excluded from the in terv iew guide. The reasons for the in c lu s io n o f only mandatory or p ro h ib itiv e p ro v isio n s was th a t the study was con cerned w ith problems created fo r sch o o l d is t r ic t s by the s t a t e 's le g a l requirem ents as they p ertain ed to cur riculum and in str u c tio n ; i . e . , no d i s t r i c t i s required to fo llo w a p erm issive b it o f le g is la t io n . I f a problem should develop w ith resp ect to a p erm issive s e c tio n o f the law, a d is t r i c t need only drop the program. The f in a l com pilation o f a l l mandatory le g is la t io n a ffe c tin g curriculum and in str u c tio n i s e x h ib ite d in the appendix. S e le c tio n o f a Jury In the process o f developing an in terv iew guide 163 o f reasonable le n g th , i t became n ecessary to determ ine j u s t which se c tio n s among those compiled were most impor ta n t and which were le a s t im p o rtan t, so th a t those o f le a s t s ig n ific a n c e could be d e le te d from th e f i n a l com p i la tio n . To do t h i s , a ju ry o f s p e c i a l i s t s was to be im paneled. I t was decided th a t a ready-made " ju ry " o f a d m in is tra to rs q u a lif ie d to p a r tic ip a te as ju r o rs e x is te d in the membership of the C a lifo rn ia Committee fo r the R evision o f Chapter Seven o f the Education Code. These educators were to meet on October 1, 1962, in Burlingam e, C a lifo rn ia ; a t th is m eeting th e members of the committee were asked to serve as members of the ju ry fo r th is stu d y . Twelve persons v o lu n te ered to p a r tic ip a te in e v a lu a tin g the im portance o f c u r r ic u la r le g i s l a t i o n . The members of the ju ry were the follow ing s p e c i a l i s t s : Mr. W illiam H. Wyckof, S upervisor o f S p ecial S e rv ic e s, San Leandro U nified Mr. Robert W . Formhals, Executive S e c re ta ry , C a lifo rn ia School Board A sso c iatio n Mr. Theodore Elmgren, J r . , Teacher C a lifo rn ia I n d u s tr ia l Education A sso c iatio n Dr. Dan T. Dawson, Executive S ecretary C a lifo rn ia Elem entary School A d m in istra to rs A sso c iatio n Dr. R ichard Clowes, A sso ciate S uperintendent S ta te Department o f Education 164 Mr. James Corson, E xecutive S e c re ta ry C a lifo rn ia A sso c iatio n o f School A d m in istra to rs Mrs. L u c ille Gansberg, County S u p erin ten d en t Lassen County Mr. C arvel W . Wood, C a lifo rn ia Teachers A sso c ia tio n Mr. W illiam H. B arton, Governmental R e la tio n s E x ecu tiv e, C a lifo rn ia Teachers A sso c ia tio n Mr. Ted Katyshak, A s s is ta n t Executive fo r Govern ment R e la tio n s , C a lifo rn ia Teachers A sso c iatio n Mr. R obert B. Todd, D ire c to r o f Secondary Education Oakland C ity U n ified Dr. G arford G. Gordon, R esearch Executive C a lifo rn ia Teachers A sso c iatio n Jury E v alu a tio n o f Items The in s tr u c tio n s to the ju ry were th a t they should examine th e com pilation c a r e f u lly . A fte r t h i s exam ination, they were to check fiv e to ten item s th a t they b e lie v e d to be the most im portant in shaping curriculum and in s tr u c tio n in C a lif o rn ia . T heir n ex t s te p was to s e le c t the fiv e o r te n p ro v isio n s th a t they thought to be the l e a s t im p o rtan t. T heir f i n a l ta sk was to in d ic a te those p ro v isio n s th a t should be excluded from the stu d y . They were a lso asked to make any comments o r su g g estio n s th a t they f e l t would enhance the in v e s tig a tio n . F in a lly , they were asked to add any item s th a t might have been o m itted 165 from the co m p ila tio n . The r e s u lt s o f the ju r y 's a n a ly s is o f item s were used in the development o f th e in te r v ie w gu ide. The item s th a t r e c e iv e d the g r e a te s t number o f m entions as b ein g "most im portant" are e x h ib ite d in Figure 1. The e n tir e co m p ila tio n i s d isp la y ed in the appendix. O rganization o f the In terview Guide The in terv iew guide was d iv id ed in to three s e c t io n s . The f i r s t s e c tio n was based on the ju r y 's ev a lu a tio n s o f le g a l p ro v isio n s l i s t e d in the i n i t i a l co m p ila tio n , and c o n s is te d o f s ix te e n s e c tio n s taken from the Education Code and from the A d m in istra tiv e Code. In th is f i r s t s e c tio n o f the g u id e, the in terv iew ee was to in d ic a te whether the p a r tic u la r s e c tio n o f the Education Code or T it le Five was a problem in h is sch o o l d i s t r i c t . This was to be a yes or no resp o n se. I f the answer was yes, the respondent was then asked to e x p la in why i t was a problem. The th ir d q u estio n was: "What recommendations would you make to change the requirem ent?" The second s e c tio n o f the guide was a gen eral area in which the in terv iew ee was asked to r e a c t to any s e c tio n s o f fche Code or T it le F iv e , oth er than those alread y 166 FIGURE 1 LEGISLATIVE SECTIONS JUDGED TO BE M O ST IMPORTANT AS THEY AFFECT CURRICULUM AND INSTRUCTION* S e c tio n P ro v is io n s EDUCATION CODE: 7551. D uty o f G overning Board t o E nforce C ourse o f Study and Use o f Textbooks The g o v ern in g b o a rd o f an y school d i s t r i c t s h a l l e n fo rc e in th e sc h o o ls th e c o u rs e o f stu d y an d th e u se o f te x tb o o k s p r e s c r ib e d and a d o p te d by th e p ro p e r a u t h o r i ty . 7551. D uty o f County B oards to P r e s c r ib e and E n fo rc e C ourses o f S tu d y C ounty boards o f e d u c a tio n s h a l l , e x c e p t i n c i t i e s h a v in g a c i t y board o f e d u c a tio n , p r e s c r ib e and e n fo rc e in th e p u b lic s c h o o ls a co u rse o f s tu d y . 7601. Y ears o f I n s t r u c t i o n f o r E lem en tary Schools E x ce p t a s o th e rw is e p r o v id e d , th e c o u rs e s o f stu d y f o r th e day e le m e n ta ry s c h o o ls in d i s t r i c t s m a in ta in in g ju n i o r h ig h s c h o o ls s h a ll em brace s i x y e a rs o f i n s t r u c t i o n , and i n d i s t r i c t s in w hich ju n i o r h ig h sc h o o ls a re n o t m a in ta in e d , th e c o u rs e s o f stu d y s h a l l em brace 8 y e a r s o f i n s t r u c t i o n . C o u rses s h a ll a l l o t s i x o r e ig h t y e a r s , r e s p e c t i v e l y , f o r i n s t r u c t i o n in s u b je c ts r e q u ir e d t o be ta u g h t in su c h s c h o o ls and may a l l o t n o t more t h a n two y e a r s fo r k in d e r g a r te n i n s t r u c t i o n . The c o u rse o f s tu d y f o r an y day e le m e n ta ry sc h o o l lo c a te d in a n elem en tary sc h o o l d i s t r i c t s i t u a t e d in a h ig h s c h o o l d i s t r i c t m a in ta in in g one o r more j u n i o r h ig h s c h o o ls , w here th e d i s t r i c t s a r e g o v ern ed by b o a rd s o f i d e n t i c a l p e r s o n n e l, s h a l l embrace s i x y e a rs o f e ig h t y e a r s a t th e d i s c r e t i o n o f th e g o v ern in g b o a rd o f th e e le m e n ta ry sc h o o l d i s t r i c t . The c o u rse s o f s tu d y f o r th e day e le m e n ta ry sc h o o ls o f a u n i f i e d sch o o l d i s t r i c t m a in ta in in g one o r more j u n i o r h ig h * As judged by a p an el o f tw elv e s p e c i a l i s t s in e d u c a tio n a l l e g i s l a t i o n in C a l if o r n ia . FIGURE 1 (continued) 167 Section Provis ions s c h o o ls s h a l l em brace s i x y e a rs o r e ig h t y e a r s , o r some o f th e e le m e n ta ry s c h o o ls may be m a in ta in e d f o r s i x y e a r s and some may be m a in ta in e d f o r e ig h t y e a r s . The c o u rs e s o f s tu d y f o r any day e le m e n ta ry sc h o o l lo c a te d in an e le m e n ta ry sc h o o l d i s t r i c t s i t u a te d i n a u n io n o r j o i n t u n io n h ig h s c h o o l d i s t r i c t m a in ta in in g one o r m ore ju n i o r h ig h s c h o o ls s h a l l b e s i x y e a rs o r e ig h t y e a r s a t th e d i s c r e t i o n o f th e g o v e rn in g b o a rd o f th e e le m e n ta ry s c h o o l d i s t r i c t i f su ch h ig h s c h o o l d i s t r i c t d id n o t m a in ta in a j u n i o r h ig h sc h o o l p r i o r t o J u ly 1 , 1943, and i f su ch e le m e n ta ry s c h o o l i s lo c a te d 40 m ile s o r m ore by th e n e a r e s t tr a v e l e d ro a d from any j u n i o r h ig h sc h o o l m a in ta in e d by su c h h ig h s c h o o l d i s t r i c t . In a l l o th e r c a s e s , th e c o u rs e s o f s tu d y o f any e le m e n ta ry s c h o o l s h a l l em brace e i g h t y e a r s . Each day e le m e n ta ry s c h o o l may a l l o t n o t m ore th a n two y e a rs f o r k in d e r g a r te n i n s t r u c t i o n . 7604 C ourse o f S tu d y i n E lem en tary S ch o o ls The c o u rs e o f stu d y i n th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n i n th e fo llo w in g p r e s c r ib e d b ra n c h e s in th e s e v e r a l g ra d e s in w hich eac h i s r e q u ir e d p u rs u a n t to t h i s a r t i c l e (comm encing a t S e c t. 7 6 0 1 ): (a ) B e g in n in g in g ra d e 1, and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s th e c a s e may b e , i n s t r u c t i o n s h a l l be g iv e n i n a l l th e fo llo w in g : (1 ) R eading (2 ) W ritin g (3 ) S p e llin g (4 ) A r ith m e tic , w ith em phasis on b a s ic p r i n c i p l e s and te c h n iq u e s . (b ) B eg in n in g n o t l a t e r th a n g ra d e 4 and c o n tin u in g th ro u g h g ra d e 6 o r 8 , a s th e c a s e may b e , i n s t r u c t i o n s h a l l be g iv e n in a l l o f th e fo llo w in g : (1 ) E n g lis h a s a s e p a r a te s u b je c t w ith em phasis on th o ro u g h n e s s , and a s a d i s c i p l i n e s e p a r a te from th e s u b je c t o f s o c i a l s tu d ie s (2 ) Geography (3 ) H is to r y , in c lu d in g th e e a r l y h i s t o r y o f C a l i f o r n i a and th e h i s t o r y o f th e U n ite d S t a t e s . (c ) B eg in n in g n o t l a t e r th a n g ra d e 6 , and c o n tin u in g th ro u g h g ra d e 6 o r 8 , a s th e c a s e may b e , th e i n s t r u c t i o n s h a l l be g iv e n in a l l o f th e fo llo w in g : FIGURE 1 (continued) 168 Section Provisions (1 ) C iv ic s (2 ) A f o r e ig n la n g u a g e o r la n g u a g e s (3 ) N a tu ra l s c ie n c e (4 ) H e a lth (d ) The c o u rs e o f s tu d y i n th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n , in th e g ra d e o r g ra d e s p r e s c r ib e d by th e co u n ty b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty , i n a l l o f th e fo llo w in g : (1 ) A rt (2 ) Music ( e ) Such o th e r s t u d i e s , n o t to e x ce ed t h r e e , a s may be p r e s c r ib e d by th e b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty . N o tw ith s ta n d in g o th e r p r o v is io n s o f t h i s s e c t i o n to th e c o n tr a r y , a f o r e ig n la n g u a g e o r la n g u a g e s may b u t i s n o t r e q u ir e d to be in c lu d e d in th e c o u rs e o f s tu d y in th e e le m e n ta ry s c h o o ls u n t i l Ju n e 3 0 , 1965, and o n and a f t e r J u ly 1 , 1965, su ch c o u rs e o f s tu d y s h a l l in c lu d e a f o r e ig n la n g u ag e o r la n g u a g e s b e g in n in g n o t l a t e r th a n g ra d e 6 and c o n tin u in g th ro u g h g ra d e 6 o r 8 , a s th e c a s e may b e . The L e g i s la tu r e h e r e d e c la r e s t h a t i t i s th e p o lic y o f th e S ta t e t o f o s t e r and en c o u ra g e f o r e ig n la n g u a g e program s in th e e le m e n ta ry and se c o n d a ry s c h o o ls by w hich th e c h i ld r e n o f t h i s S ta t e l e a r n to sp e a k and w r ite f o r e ig n la n g u a g e s w ith th e same f a c i l i t y w ith w hich th e c h i ld r e n e d u c a te d i n s c h o o ls o f o th e r c o u n t r i e s sp eak and re a d f o r e ig n la n g u a g e s , in o r d e r t h a t th e c h i ld r e n o f t h i s S ta te b e a d e q u a te ly p re p a re d to u n d e rta k e t h e i r d u t i e s a s A m erican c i t i z e n s i n a w o rld i n w hich th e a b i l i t y t o com m unicate w ith p e o p le s o f o th e r c o u n tr ie s in t h e i r own to n g u e i s o f e v e r - i n c r e a s in g im p o rta n c e . 7605 Minimum Time R eq u irem en ts i n C e r ta in C ourses A minimum o f 50 p e r c e n t o f e a c h sc h o o l week s h a l l be d e v o te d t o r e a d in g , w r i t i n g , la n g u a g e s tu d y , s p e l l i n g , a r i t h m e t i c , and c i v i c s i n g ra d e s one to s i x , in c lu s iv e and a minimum o f 600 m in u te s o f eac h sc h o o l week s h a l l be d e v o te d to su ch s u b je c t s i n g ra d e s sev en and e i g h t . 7700 C ourse o f S tu d y f o r G rades 7 t o 12 I n c lu s iv e The c o u rs e o f s tu d y f o r g ra d e s 7 and 8 o f each e le m e n ta ry s c h o o l, and f o r e a c h ju n i o r h ig h s c h o o l, h ig h s c h o o l, o r g ra d e s 11 and 12 o f a f o u r - y e a r j u n i o r c o l le g e s h a l l be p re p a re d u n d e r th e d i r e c t i o n o f th e g o v e rn in g b o a rd h a v in g c o n t r o l t h e r e o f and FIGURE 1 (continued) 169 Section Provisions s h a l l be s u b je c t t o th e a p p ro v a l o f th e S ta t e B oard o f E d u c a tio n . The c o u rs e o f s tu d y s h a l l m eet th e re q u ire m e n t o f th iB s e c t i o n . I n a d d i tio n to c o u rs e s o th e rw is e r e q u ir e d by law , th e c o u rs e o f s tu d y s h a l l r e q u ir e o f a l l p u p ils i n g ra d e s 7 t o 12 in c lu s iv e : ( a ) F iv e y e a r s o f i n s t r u c t i o n in th e u s e o f E n g lis h , d e s ig n e d to te a c h th e s tu d e n t t o re a d r a p i d l y and p e r c e p tiv e l y , to w r ite c l e a r l y and c o r r e c t l y , and to p r e s e n t id e a s o r a l l y . Such i n s t r u c t i o n s h a l l in c lu d e th e p r i n c i p l e s o f grammar and p u n c tu a tio n a s in s tru m e n ts o f re a d in g and w r i t i n g . A lso a c o re o f re a d in g d e s ig n e d to f a m i l i a r i z e th e s tu d e n t w ith th e v a r i e t y o f l i t e r a r y form s and to im prove h i s re a d in g a b i l i t y s h a l l be ta u g h t. (b ) F iv e y e a r s o f h i s t o r y conm encing w ith g ra d e 7 , to in c lu d e a l l o f th e fo llo w in g : (1 ) Tw enty s e m e s te r p e r io d s o f A m erican h i s t o r y e m p h a siz in g A m erican i n s t i t u t i o n s and i d e a l s , and C a l i f o r n i a h i s t o r y . (2 ) Twenty s e m e s te r p e r io d s o f w o rld h i s t o r y , th e h i s t o r y o f W estern C i v i l i z a t i o n , and w o rld g eo g rap h y . (3 ) Ten s e m e s te r p e r io d s o f A m erican governm ent e m p h a siz in g p r i n c i p l e s o f th e C o n s tit u ti o n and th e D e c la r a tio n o f In d e p e n d e n c e , and th e p r i n c i p l e s o f s t a t e and l o c a l gov ernm ent u n d e r th e C o n s tit u ti o n o f t h i s S t a t e . F o r p u rp o s e s o f th e h i s t o r y re q u ire m e n ts d e s c r ib e d by s u b d iv i s io n ( b ) , i n th e c a se o f s c h o o ls w hich a r e n o t o p e r a te d on th e b a s i s o f s e m e s te r p e r io d s , th e tim e d e v o te d to th e r e s p e c t iv e c o u rs e s s h a l l b e , a s n e a r ly a s p r a c t i c a b l e , th e e q u iv a le n t o f th e r e q u ir e d tim e a s m easured in te rm s o f s e m e s te r p e r io d s , and th e S ta t e B oard o f E d u c a tio n s h a l l by r e g u l a t i o n , p r e s c r ib e th e m anner in w hich tim e d u rin g th e s c h o o l y e a r s h a l l b e a l l o c a t e d f o r su ch p u rp o s e s i n th o s e s c h o o ls . 7852 Instruction in Manners and Morals; Effects of Alcohol and Narcotics I n s t r u c t i o n s h a l l be g iv e n in a l l g ra d e s o f s c h o o l and i n a l l c l a s s e s d u rin g th e e n t i r e s c h o o l c o u r s e , i n m anners and m o ra ls . I n s t r u c t i o n upon th e n a tu r e o f a lc o h o l and n a r c o t i c s and t h e i r e f f e c t s upon th e human sy ste m a s d e te rm in e d by s c ie n c e s h a l l be in c lu d e d in th e c u rric u lu m o f a l l e le m e n ta ry and se c o n d a ry s c h o o ls . The g o v e rn in g b o a rd o f th e d i s t r i c t s h a l l a d o p t r e g u l a t i o n s s p e c if y in g th e g ra d e o r g ra d e s and th e c o u rs e o r c o u rs e s in w hich su ch i n s t r u c t i o n w ith r e s p e c t to a lc o h o l and n a r c o t i c s s h a l l be in c lu d e d . FIGURE 1 (continued) 170 Section Provisions 7901 C ourses in H is to ry and Government In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , th e r e s h a l l be g iv e n r e g u la r c o u rs e s o f i n s t r u c t i o n in th e C o n s titu tio n o f th e U n ite d S t a t e s , and in A m erican h i s t o r y , in c lu d in g th e stu d y o f A m erican i n s t i t u t i o n s and i d e a l s . In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , th e r e s h a l l be g iv e n i n s t r u c t i o n in th e C o n s titu tio n o f th e S ta te o f C a l i f o r n i a , and in C a l if o r n ia h i s t o r y and c i v i c s . 7902 Grade L ev el o f R eq u ired C ourses I n s t r u c t i o n in th e c o u rs e s re q u ir e d by S e c tio n 7901 s h a l l b e g in n o t l a t e r th a n th e o p en in g o f th e e ig h th g rad e and s h a l l co n ti n u e in th e h ig h sc h o o l c o u rs e and in c o u rs e s in s t a t e c o l le g e s , th e u n i v e r s i t i e s , and e d u c a tio n a l d e p a rtm e n ts o f s t a t e , m u n ic i p a l , and p r i v a t e i n s t i t u t i o n s , to an e x te n t to be d e te rm in e d by th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n . 7903 P r e r e q u i s i t e s to Advanced C ourses B a sic i n s t r u c t i o n i n g eo g rap h y , U n ite d S ta te s h i s t o r y , c i v i c s , th e D e c la r a tio n o f In d ep en d en ce, th e C o n s titu tio n o f th e U n ite d S t a t e s , and in A m erican i n s t i t u t i o n s and id e a ls a s p r e s c r ib e d by S e c tio n s 7901, 7902, and 7604 o f t h i s code be p r e r e q u i s i t e to p a r t i c i p a t i o n by p u p ils i n advanced c o u rs e s in v o lv in g th e s tu d y o f problem s in s o c io lo g y , p o l i t i c a l s c ie n c e , econom ics, f o r e ig n tr a d e and f o r e ig n a f f a i r s . 8159 Minimum I n s t r u c t i o n in E lem en tary S chools A ll p u p ils e n r o lle d in th e e le m e n ta ry s c h o o ls , e x c e p t p u p ils e x c u se d , s h a l l be r e q u ir e d to a t te n d upon th e c o u rs e s o f p h y s i c a l e d u c a tio n f o r an i n s t r u c t i o n a l p e rio d in eac h sc h o o l day w hich s h a l l n o t be l e s s th a n 20 m in u tes e x c lu s iv e o f r e c e s s e s and lu n c h p e r io d . 8160 Minimum I n s t r u c t i o n in J u n io r and S e n io r H igh S ch o o ls A ll p u p ils e n r o lle d in th e ju n i o r o r s e n io r h ig h s c h o o ls , e x c e p t p u p ils e x c u se d , s h a l l be r e q u ir e d to a tte n d upon th e c o u rs e s o f p h y s ic a l e d u c a tio n f o r an i n s t r u c t i o n a l p e rio d i n each s c h o o l day w hich s h a l l be n o t l e s s th a n th e le n g th o f th e r e g u la r academ ic p e rio d s o f th e s c h o o l. 8453 S e c ta r ia n , P a r ti s a n o r D en o m in atio n al P u b lic a tio n s o r T each in g s M o p u b li c a ti o n o f a s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l c h a r a c te r s h a l l be d i s t r i b u t e d o r u sed f o r s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l p u rp o se s in any s c h o o l, e x c e p t t h a t n o th in g h e r e i n s h a l l r e s t r i c t th e developm ent and u se o f sc h o o l l i b r a r y FIGURE 1 (continued) 171 Section Provisions c o l l e c t i o n s . No s e c t a r i a n o r d e n o m in a tio n a l d o c tr in e s h a l l be ta u g h t i n any s c h o o l. Any sc h o o l d i s t r i c t o r c i t y , th e o f f i c e r s o f w hich know ingly a llo w any c l a s s e s o r s tu d e n ts to b e ta u g h t i n v i o l a t i o n o f t h i s s e c t i o n , f o r f e i t s a l l r i g h t s t o any s t a t e o r c o u n ty a p p o rtio n m e n t o f s c h o o l m oneys, and upon s a t i s f a c t o r y e v id e n c e o f any v i o l a t i o n , th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n and sc h o o l s u p e r in te n d e n t s h a l l w ith h o ld b o th s t a t e and c o u n ty a p p o rtio n m e n ts . 12822 D i s t r i c t G overning B oards to I n s t i t u t e P rogram The g o v e rn in g b o a rd o f e a c h d i s t r i c t s h a l l , in a c c o rd a n c e w ith th e r u l e s and r e g u la tio n s o f th e S ta t e B oard o f E d u c a tio n , i n s t i t u t e a t e s t i n g p ro g ram in th e d i s t r i c t and s h a l l , e x c e p t a s o th e rw is e p ro v id e d in t h i s s e c t i o n , s e l e c t from th e ap p ro v ed l i s t th e ach iev em en t and i n t e l l i g e n c e t e s t s t o be u se d in th e t e s t i n g p ro g ram . H ie c o u n ty b o a rd o f e d u c a tio n s h a l l s e l e c t from th e ap p ro v ed l i s t o f a c h iev em en t and i n t e l l i g e n c e t e s t s th e t e s t s t o be u se d in th e t e s t i n g p rogram o f eac h e le m e n ta ry d i s t r i c t w hich h ad l e s s th a n 901 u n i t s o f a v e ra g e d a i l y a t te n d an ce d u rin g th e p re c e d in g f i s c a l y e a r and eac h u n i f i e d d i s t r i c t w hich h ad l e s s th a n 1501 u n i t s o f a v e ra g e d a i l y a tte n d a n c e d u rin g th e p re c e d in g f i s c a l y e a r , w hich d i s t r i c t i s u n d e r th e j u r i s d i c t i o n o f th e c o u n ty s u p e r in te n d e n t o f s c h o o ls o f th e c o u n ty . ADMINISTRATIVE CODE, TITLE FIVE: 97 R e q u ire d I n s t r u c t i o n i n S eco n d ary S ch o o ls The g o v e rn in g b o a rd o f ea c h s c h o o l d i s t r i c t m a in ta in in g one o r more se c o n d a ry s c h o o ls s h a l l p r e s c r ib e c o u rs e s o f i n s t r u c t i o n w hich s h a l l be r e q u ir e d o f a l l p u p il s and w h ich , i n a d d i tio n to in c lu d in g th o s e r e q u ir e d by law , s h a l l in c lu d e c o u rs e s o f i n s t r u c t i o n : (a ) In th e u se o f E n g lis h t o prom ote th e s a t i s f a c t o r y m a ste ry o f o r a l and w r i t t e n E n g lis h . (b ) The g o v e rn in g b o a rd o f th e s c h o o l d i s t r i c t s h a l l p ro v id e c o u rs e s o f i n s t r u c t i o n in th e C o n s tit u ti o n o f th e U n ite d S t a t e s , and i n A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s and o f th e p r i n c i p l e s o f s t a t e and l o c a l governm ent e s t a b l i s h e d u n d e r th e C o n s titu t i o n o f t h i s S t a t e , in le n g th n o t l e s s th a n 15 s e m e s te r p e r io d s in e v e ry j u n i o r h ig h s c h o o l, s e n io r h ig h s c h o o l, and fo u r y e a r h ig h s c h o o l; and in e v e ry ju n i o r c o lle g e f o r a t l e a s t th r e e c r e d i t h o u rs . FIGURE 1 (continued) 172 Section Provisions (1 ) A s e m e s te r p e r io d i s d e f in e d a s one p e r io d o f 40 t o 60 m in u te s p e r week th ro u g h o u t one s e m e s te r o f n o t l e s s th a n 17 w eeks. 102 R eq u irem en ts f o r G ra d u a tio n from S eco n d ary S ch o o l ( a ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a se c o n d a ry sc h o o l s h a l l a u t h o r i s e to g r a d u a te , from any se c o n d a ry s c h o o l, any p u p il o f good c h a r a c te r and c i t i z e n s h i p who s a t i s f a c t o r i l y c o m p le te s th e f u l l c u rric u lu m p r e s c r ib e d f o r th e s c h o o l in w hich th e p u p il i s r e g u l a r l y e n r o ll e d and i n a tte n d a n c e a t th e tim e o f c o m p le tio n o f h i s w ork, in c lu d in g i n s t r u c t i o n in th e C o n s tit u ti o n o f th e U n ite d S t a t e s , and in A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s , and o f th e p r i n c i p l e s o f s t a t e and l o c a l governm ent e s t a b l i s h e d u n d e r th e C o n s tit u ti o n o f t h i s S t a t e , and th e s u c c e s s f u l p a s s in g o f an e x a m in a tio n th e r e o n . (b ) The g o v e rn in g b o ard o f a sc h o o l d i s t r i c t m a in ta in in g a fo u r y e a r o r s e n i o r h ig h s c h o o l s h a l l g r a n t d ip lo m a o f h ig h sc h o o l g r a d u a tio n f o r th e c o m p le tio n o f a c o u rs e o f s tu d y o r c u r r i c ulum w hich in c lu d e s n o t l e s s th a n 190 s e m e s te r p e r io d s and n o t more th a n 240 s e m e s te r p e r io d s o f c la ss ro o m i n s t r u c t i o n and s u p e r v is e d l e a r n in g , in c lu d in g work e x p e r ie n c e . (1 ) A s e m e s te r p e r io d i s d e f in e d a s one p e r io d o f 40 -6 0 m in u te s p e r week th ro u g h one s e m e s te r o f n o t l e s s th a n 17 w eek s. When a sc h o o l i s o p e r a tin g on a minimum day ( f o u r c lo c k h o u rs ) a d ju s tm e n ts in le n g th o f p e r io d s o r num ber o f p e r io d s p e r week may b e made w ith o u t r e d u c tio n o f th e num ber o f s e m e s te r p e r io d s w hich w ould o th e rw is e be c r e d i t e d . (c ) (O m itte d ) (d ) The g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t m a in ta in in g a se c o n d a ry s c h o o l s h a l l aw ard th e a p p r o p r ia te diplom a o r d e g re e w henever a p u p il s h a l l h ave co m p lete d a l l r e q u i r e m en ts o f a f u l l c u rric u lu m o f th e se c o n d a ry s c h o o l w ith o u t re g a r d to th e le n g th o f tim e a c t u a l l y ta k e n by th e p u p i l to c o m p lete su c h re q u ire m e n ts . (1 ) The g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t s h a l l g r a n t to any p u p il who s a t i s f a c t o r i l y co m p le te s th e re q u ire m e n ts o f any c o u rs e o f s tu d y in l e s s th a n th e p r e s c r ib e d tim e , th e f u l l num ber o f s e m e s te r p e r io d s o r c r e d i t h o u rs s c h e d u le d f o r su ch c o u r s e . FIGURE 1 (c o n tin u e d ) 173 Section Provisions ( e ) The g o v e rn in g b o ard o f a sc h o o l d i s t r i c t m a in ta in in g a se c o n d a ry s c h o o l s h a l l is s u e a c e r t i f i c a t e o f c o m p le tio n t o any p u p i l who s u c c e s s f u lly c o m p le te s any c o u rse o f s tu d y o r c u rric u lu m in le n g th le s s th a n th e f u l l number o f y e a r s and g ra d e s m a in ta in e d by th e s c h o o l. ( f ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a h ig h s c h o o l s h a l l r e q u i r e any p u p il p u rs u in g a v o c a tio n a l c u rric u lu m i n a f o u r - y e a r o r s e n i o r h ig h s c h o o l to co m p lete i n a s p e c i f i c v o c a tio n a l f i e l d a seq u en ce o f c o u rs e s o f s tu d y a p p ro v e d by th e S ta te D epartm ent o f E d u c a tio n . (g ) The g o v e rn in g bo ard o f a s c h o o l d i s t r i c t m a in ta in in g a h ig h sc h o o l may aw ard a dip lo m a o f g r a d u a tio n to a p e rs o n h o n o ra b ly d is c h a rg e d from th e arm ed f o r c e s o f th e U n ite d S ta t e s who: (1 ) e n te r e d a c t iv e s e r v i c e in su c h armed f o r c e s s u b se q u e n t to S eptem ber 1 6 , 1940, and s e rv e d t h e r e i n f o r n o t l e s s th a n 90 days and (2 ) co m p lete d T e s ts o f G en eral E d u c a tio n D evelopm ent (h ig h sc h o o l l e v e l ) p r e p a r e d by th e A m erican C o u n cil on E d u c a tio n w ith a n a v e ra g e s ta n d a r d s c o r e o f 4 5 , o r ab o v e, o n th e f i v e t e s t s i n th e b a t t e r y and w ith a s ta n d a r d s c o re o f 3 5 , o r ab o v e, on e a c h o f th e f iv e t e s t s i n th e b a t t e r y , and ( 3 ) h as m et th e s t a t e le g a l re q u ire m e n t o f U n ite d S ta t e s h i s t o r y and U n ite d S ta te s C o n s tit u ti o n in a d d i tio n to th e re q u ire m e n ts p r e s c r ib e d by th e g o v e rn in g b o a rd o f th e h ig h sc h o o l g r a n tin g th e d ip lo m a. review ed, th a t they thought had caused a problem to th e ir sch o o l d i s t r i c t . The same gen eral procedure was used in t h is se c tio n as was used in the f i r s t part o f the gu ide. The th ir d s e c tio n o f the in terv iew guide c o n sis te d o f a s e r ie s o f seven q u estion s o f a gen eral n a tu re. The q u estio n s were designed to develop g e n e r a liz a tio n s from ad m in istrators in the area o f le g is la t iv e c o n tro l over m atters o f curriculum and in s tr u c tio n , and were as fo llo w s 1. Is c e n tr a liz a tio n o f a u th o rity in curriculum ad visab le? 2. Is p iece-m eal curriculum le g is la t io n w ise? 3. Can we provide fo r the in d iv id u a l stud en t through s t a te co n tro l o f curriculum? 4 . What su g g estio n s do you have fo r changing the p resent co n d itio n o f curriculum le g is la t io n in C alifo rn ia ? 5. Are the number o f le g a l requirem ents a problem? 6. Do you think there w i l l be more curriculum le g is la t io n in the future? 7. What should be the r o le or p o s itio n o f the pro f e s s io n a l educator in regard to curriculum le g is la tio n ? 175 B asis o f S e le c tio n o f D is t r ic t s to be Surveyed In order to g iv e the in v e s tig a tio n w id est coverage and g r e a te s t depth, the s ta te o f C a lifo rn ia was d ivid ed in to three geographic areas: Northern C a lifo r n ia , C entral C a lifo r n ia , and Southern C a lifo r n ia . This follow ed the d iv is io n o f the s ta te id e n t if ie d by the C a lifo rn ia Teachers A sso c ia tio n . The Northern se c tio n was the reg io n north o f the fo llo w in g co u n tie s: Monterey, San B en ito , Merced, M ariposa, and Mono. The C entral s e c tio n extended from the northern lin e as d escrib ed above to those co u n ties north o f Ventura, Los A n g eles, and San Bernardino c o u n tie s. The Southern s e c tio n in clu d ed Ventura, San Bernardino, Orange, R iv e r sid e , San D iego, Im perial, and Los Angeles c o u n tie s . The n ext step was to s e t up a c l a s s if ic a t io n system . Each geographic area was d iv id ed in to three groups accord ing to type o f d i s t r i c t : u n ifie d sch o o l d i s t r i c t s , e l e mentary sch o o l d i s t r i c t s , and high sch ool d i s t r i c t s . It was f e l t th at the problems encountered by elem entary d is t r i c t s were p o ssib ly d iffe r e n t from those which developed in u n ifie d d is t r ic t s or in high sch ool d i s t r i c t s . The second b a s is o f c la s s if ic a t io n w ith in geographic reg io n s was th a t o f d is t r ic t s i z e . A fter an exam ination 176 o f the enrollm ents o f a l l sch o o l d i s t r i c t s in C a lifo r n ia , the sch o o ls were c l a s s if ie d as sm a ll, medium, or la r g e . The sm all d is t r ic t s were d esign ated to be th ose which in the 1961-62 C a lifo rn ia Budget Approval Report had an average d a ily attendance o f le s s than 1,500 u n it s . The m edium-sized d is t r ic t were those which f e l l between 1,500 and 4,999 u n its in average d a ily attend ance. The la rg e d is t r ic t s were c la s s if ie d as any d i s t r i c t o f more than 5,000 u n its in average d a ily attend ance. This gave a t o t a l o f nine d is t r ic t s fo r each o f the three region s o f the s t a t e , or tw enty-seven in a l l . This number, i t was f e l t , would provide an adequate and re p r e se n ta tiv e sample o f the d is t r ic t s in each r e g io n , and in the s t a te as a w hole. D is t r ic ts Interview ed Interview s were conducted in each o f the tw enty- seven d i s t r i c t s s e le c te d fo r in c lu sio n in the survey p art o f the in v e s tig a tio n . The d i s t r i c t s th a t were in terview ed in Northern C a lifo rn ia were the fo llo w in g : U n ified School D is t r ic ts Sm all - Emery U n ified School D is t r ic t Medium - P ittsb u rg U n ified School D is t r ic t Large - Mt. D iablo U n ified School D is t r ic t 177 Elementary School D is t r ic ts Small - Alamo Elementary School D is t r ic t Medium - M artinez Elementary School D is t r ic t Large - Richmond Elementary School D is t r ic t High School D is t r ic t s Small - Alhambra Union High School D is t r ic t Medium - A calanes Union High School D is t r ic t Large - Hayward Union High School D is t r ic t In the C entral C a lifo rn ia re g io n , the fo llo w in g d is t r ic t s were in terview ed : U n ified School D is tr ic ts Sm all - P a r lie r U n ified School D is t r ic t Medium - C lovis U n ified School D is t r ic t Large - Fresno U n ified School D is t r ic t Elementary School D is tr ic ts Sm all - Kerman Floyd Elementary School D is t r ic t Medium - T aft Elementary School D is t r ic t Large - B a k ersfield Elementary School D is t r ic t High School D is t r ic ts Sm all - Kerman Union High School D is t r ic t Medium - Madera Union High School D is t r ic t Large - Kern County Union High School D is t r ic t In the Southern C a lifo rn ia reg io n , the fo llo w in g d is t r ic t s were in terview ed : U n ified School D is t r ic ts Sm all - Rim o f the World U n ified School D is t r ic t Medium - E l Segundo U n ified School D is t r ic t Large - Santa Ana U n ified School D is t r ic t 178 Elementary School D is t r ic t s Small - M ill Elementary School D is t r ic t Medium - Santa Paula Elementary School D is t r ic t Large - Oxnard Elementary School D is t r ic t High School D is t r ic t s Small - W illiam S. Hart Union High School D is t r ic t Medium - Ventura Union High School D is t r ic t Large - Anaheim Union High School D is t r ic t Interview Procedures Prelim inary arrangem ents. A fter the d is t r ic t s had been s e le c te d , l e t t e r s were sen t to each one from the C a lifo rn ia A sso c ia tio n o f School A dm inistrators ex p la in in g the study and s ta tin g th at an in terv iew er would co n ta ct them. Their coop eration was s o l i c i t e d . A copy o f th is le t t e r appears in the appendix. Follow ing the in trod u c tory l e t t e r from the C a lifo rn ia A sso c ia tio n o f School A d m in istrators, a copy o f the com p ilation o f le g a l require' ments concerning curriculum and in s tr u c tio n , to g eth er w ith a l e t t e r req u estin g an in terv iew w ith the sch o o l d is t r i c t ad m in istrator was sen t to each o f the tw enty-seven sch o o l d is t r ic t s in the sam ple. A return postcard was en clo sed and on t h is the su perin ten dent was asked to in d ic a te whether the proposed date for the m eeting was a c c ep ta b le , 179 and to s p e c ify a tim e. In some in s ta n c e s , in order to make e f f e c t iv e use o f the in te r v ie w e r s ' tim e and to reduce the p o s s i b i l i t y o f having to make retu rn t r ip s to f a r -d is ta n t p arts o f the s t a t e , the d i s t r i c t s were a ssig n e d te n ta tiv e tim es for the appointm ents. The need fo r d e s ig n a tin g a s p e c if ic hour was alm ost mandatory when the in t e r view er had scheduled more than two in te rv ie w s on a g iv en day. The assignm ent o f s p e c if ic tim es was then ex p la in ed in the l e t t e r to the su p e rin ten d en ts. The in te r v ie w tim e was exp ected to be approxim ately one hour in le n g th . Recording o f d a ta . The method used to record the data was to take sh o rt n o tes w h ile the respondent was answ ering or r e a c tin g to the q u e stio n s. The rep orts, were then w r itte n up as soon as p o s s ib le a f t e r the in te r v ie w . The use o f the tape record er had been co n sid ered , but i t was decided th a t th ere might be a r e lu cta n c e on the part o f the a d m in istra to rs who p a r tic ip a te d as respondents to respond w ith as much candor as they might have w ith ou t i t . The use o f the tape record er would a ls o have d u p lica te d the amount o f work, fo r i t would have in crea sed the amount o f tim e needed in tr a n sc r ib in g and a n a ly zin g the n o tes o f the in te r v ie w s. No problems were encountered w ith the 180 w r itin g o f the n o te s , so i t was f e l t th a t t h is system was s a t is f a c t o r y . Respondents had no o b je c tio n s to the ta k in g o f n o tes w h ile they ta lk e d . Of co u rse, i t would have been b e s t i f no n o te -ta k in g were needed, but w ith the g reat number o f q u estio n s to be asked, and the m u lti p l i c i t y o f s p e c if i c data to be o b ta in ed , i t would have been im p o ssib le to keep accurate m ental n o te s . The response from a d m in istra to rs throughout the s t a t e was very fa v o ra b le . They were more than w illin g to cooperate w ith the in te r v ie w e r s . They seemed to sen se the im portance o f the study and were happy to take part in i t . C opies o f p e r tin e n t correspondence w ith members o f the jury and w ith in te r v ie w ee s are in clu d ed in the appendix. Chapter Summary The procedures fo llo w ed in t h is in v e s tig a tio n are d escrib ed in t h is ch ap ter. The f i r s t ste p was to examine the 1961 Education Code, the A d m in istrative Code, T itle F iv e--E d u ca tio n , and the C o n s titu tio n , and to c o l le c t a l l p r o v isio n s concerning curriculum and in s tr u c tio n in the elem entary and secondary sc h o o ls o f C a lifo r n ia . From t h is very len gth y co m p ila tio n , a l l p erm issive requirem ents 181 were e lim in a ted , which l e f t s ix ty -n in e requirem ents th at were e ith e r mandatory or p r o h ib itiv e in n a tu re. A jury c o n s is tin g o f seven men who were members o f the Committee on R evision o f D iv isio n Seven o f the Education Code was impaneled to pick out the requirem ents th a t they thought most lik e ly to crea te problems for sch ool d i s t r i c t s . This elim in a ted a l l but s ix te e n item s. Using th ese s i x teen requirem ents as item s, an in terv iew guide was d eveloped, and tw enty-seven sch o o l d i s t r ic t s in the s ta te o f C a lifo rn ia were s e le c te d to be in terv iew ed . The admin is tr a to r s who were in terview ed were asked whether the l i s t e d requirem ents were a problem to them; and, i f so , to s ta te why. They were asked to s t a te what recommenda tio n s they would make fo r a change in the le g a l req u ire m ents. They were a ls o asked whether there were other requirem ents b esid es those lis t e d th a t were problems to them. In the la s t part o f the in te rv ie w , they were asked to r e a ct to seven q u estion s p erta in in g to problems and v iew p o in ts. A ll the ad m in istrators p a r tic ip a tin g in the in terv iew s were coop erative and glad to p a r tic ip a te in a study they f e l t to be o f valu e to them. C H A PTER V FINDINGS O F T H E SU R V E Y Introduction The purpose o f the survey was to determ ine from ad m in istrators in s e le c te d sch o o l d is t r ic t s throughout C a lifo rn ia what major problems in curriculum and in s tr u c tio n were created fo r them by cu rricu la r le g is la t io n . The inquiry a ls o examined the reasons fo r the e x iste n c e o f the problem s, and the remedies th a t ad m in istrators throughout the s ta te would su ggest to co rrect them. As was exp lain ed in the preceding ch ap ter, adm inis tr a to r s in tw enty-seven sch o o l d is t r ic t s were in terv iew ed -- n in e in Southern C a lifo r n ia , nine in C entral C a lifo r n ia , and nine in Northern C a lifo r n ia . In each geographic region a sm all, a medium, and a la rg e elem entary d is t r ic t ; a sm a ll, a medium, and a large high sch o o l d is t r ic t ; and a sm a ll, a medium, and a large u n ifie d d is t r ic t were s e le c te d for in c lu sio n in the survey. 182 183 In some o f the sch o o l d i s t r i c t s , more than one person p a r tic ip a te d in the in terv iew so th a t the t o t a l number o f persons in terview ed was t h ir t y - f iv e in stea d o f tw en ty-seven . P a rticip a n ts were d istr ib u te d according to the fo llo w in g p o s itio n s : four p r in c ip a ls , three coordina to r s o f in s tr u c tio n or curriculum , seven d ir e c to r s o f curriculum or in s tr u c tio n , s ix a s s is ta n t superin ten den ts fo r curriculum or in s tr u c tio n , one co u n selo r, one deputy su p erin ten d en t, one a d m in istra tiv e a s s is t a n t , and tw elve su p erin ten d en ts. In terview ees were asked to s ta te whether the le g a l requirem ents named by the jury had caused problems to t h e ir d i s t r i c t s . They were then asked to id e n tify other le g a l requirem ents which had caused problems to the d is t r i c t . F in a lly , they were encouraged to express th e ir view s concerning p resen t curriculum le g is la t io n in g en era l. The fin d in g s reported in t h is chapter are presented according to the fo llo w in g headings: (1) A n alysis o f the e x te n t to which le g a l requirem ents have caused problems to sc h o o l d i s t r i c t s ; (2) com parative a n a ly sis o f the ex ten t to which p o s s ib le problems a c tu a lly were encountered; (3) the rank-order l i s t i n g o f d i s t r i c t s according to the number o f problems each experienced as a r e s u lt o f curriculum 184 le g is la t io n ; (4) re a ctio n s concerning l i s t e d le g a l r e quirem ents, in clu d in g comments o f the persons in terview ed ; (5) the rank-order l i s t i n g o f s p e c if ic le g a l requirem ents, according to the number o f tim es each was reported to have been a problem to the d i s t r i c t ; and (6) the view s o f ad m in istrators concerning curriculum le g is la t io n in gen era l. Legal Requirements Which Have Caused Problems The number and percentage o f le g a l requirem ents which had a c tu a lly caused problems to the tw enty-seven surveyed d i s t r i c t s in C a lifo rn ia were analyzed in three d iffe r e n t ways fo r each geographic re g io n , as w e ll as for the s ta te as a whole: (1) the le g a l requirem ents th a t were chosen by the jury as b ein g c r u c ia l; (2) the le g a l requirem ents id e n tifie d by respondents as having caused d i f f i c u l t i e s to the d is t r ic t s ; and (3) the le g a l req u ire ments th at were both mentioned by the jury and id e n tifie d by the d i s t r i c t s . The data are summarized in Table 1. I t i s seen th at s iz e and t y p e - o f - d is t r ic t c a te g o r ie s are analyzed according to geographic region s o f the s t a t e , as w e ll as fo r the s ta te as a w hole. TABLE 1 L E G A L R E Q U IR E M E N T S T H A T H A V E C A U S E D P R O B L E M S T O S C H O O L DISTRICTS Legal Requirements A ffecting Curriculum and Instruction D istr ic ts Items Chosen by the Jury (N“16) Items Id en tified by D istr ic ts (N=19) Combined (N=35) Number Appli cable N u m ber Per cent Number Appli cable N u m ber Per cent Number Appli cable N u m ber Per cent S O U T H E R N CALIFO RNIA: Elementary 12 5 41.7 14 4 28.6 26 9 34.6 High School 12 10 83.3 19 9 47.4 31 19 61.3 Unified 16 13 81.3 19 6 31.6 35 19 54.3 Small 16 12 75.0 19 6 31.6 35 18 51.4 Medium 16 12 75.0 19 5 26.3 35 17 48.6 Large 16 13 81.3 19 7 36.8 35 20 57.1 Total 19 13 81.3 19 14 73.7 35 27 77.1 C EN TR A L CALIFORNIA: Elementary 12 7 58.3 14 7 50.0 26 14 53.8 High School 12 5 41.7 19 5 26.3 31 10 32.3 Unified 16 8 50.0 19 4 21.1 35 12 34.3 Small 16 6 37.5 19 1 5.3 35 7 20.0 Medium 16 6 37.5 19 4 21.1 35 10 28.6 Large 16 9 56.3 19 10 52.6 35 19 54.3 Total 19 11 68.8 19 10 52.6 35 21 60.0 Elementary 12 7 58.3 High School 12 5 4 1.7 U n ified 16 8 50.0 Small 16 6 37.5 Medium 16 6 37.5 Large 16 9 56.3 T otal 19 11 6 8 .8 N O R T H E R N CALIFORNIA: Elementary 12 5 4 1 .7 High School 12 6 50.0 U n ified 16 8 50.0 Small 16 5 31.3 Medium 16 8 50.0 Large 16 8 50.0 T otal 19 11 6 8 .8 ALL CALIFORNIA: Elementary 12 9 75.0 High School 12 12 100.0 U n ified 16 14 87.5 Sm all 16 13 81.3 Medium 16 14 87.5 la r g e 16 14 87.5 T otal 19 15 93.8 14 7 50.0 26 14 53.8 19 5 26.3 31 10 32.3 19 4 21.1 35 12 34.3 19 1 5 .3 35 7 20.0 19 4 21.1 35 10 28.6 19 10 52 .6 35 19 54 .3 19 10 5 2 .6 35 21 60.0 14 4 2 8 .6 26 9 34.6 19 6 31.6 31 12 38.7 19 9 4 7 .4 35 17 4 8 .6 V 19 5 2 6 .3 35 10 28.6 19 8 4 2 .1 35 16 45.7 19 7 3 6 .8 35 15 42.9 19 11 5 7 .9 35 22 62.9 14 11 78.6 26 20 76.9 19 12 63.2 31 24 77.4 19 14 73.7 35 28 80.0 19 9 4 7 .4 35 22 62.9 19 11 58.0 35 25 71.4 19 15 78.9 35 29 82.7 19 19 100.0 35 34 97 .1 185 186 Southern C a lifo rn ia Legal requirem ents chosen by the ju r y . A t o t a l o f s ix te e n le g a l requirem ents were m entioned by the ju ry as b ein g p o s s ib le sou rces o f d i f f i c u lt y to sch o o l d i s t r i c t s in C a lifo r n ia . Of t h is number, tw elve a p p lied to elem en tary d i s t r i c t s , tw elve to h igh sc h o o l d i s t r i c t s , and a l l s ix te e n a p p lied to u n ifie d d i s t r i c t s . A ll s ix te e n item s a lso a p p lied to a l l d i s t r i c t s when c l a s s i f i e d accord in g to s iz e ( i . e . , sm a ll, medium, or la rg e c a te g o r ie s ). The same numbers o f le g a l requirem ents a ls o a p p lied to the o th er geographic r e g io n s--C e n tr a l and Northern C a lifo m ia --a n d to the s t a te as a w hole. With r e sp e c t to type o f d i s t r i c t , i t was found th at in the elem entary d i s t r i c t s in Southern C a lifo r n ia , 5 o f th e 12 a p p lic a b le le g a l requirem ents, or 41.7 per c e n t, were so u rces o f d i f f i c u l t y to the d i s t r i c t s . In the h ig h sch o o l d i s t r i c t s ,. 10 o f the 12, or 8 3 .3 per c e n t, were problem a r e a s. In u n ifie d d i s t r i c t s , 13 o f the 16 requirem ents, or 81.3 per c e n t, had crea ted problem s. With r e sp e c t to d i s t r i c t s i z e , the sm all d i s t r i c t s rep orted that 12 o f the 16 a p p lic a b le le g a l requ irem en ts, or 75 p er c e n t, had caused problem s. In th e m edium -sized d i s t r i c t s , 12 o f the 16 requ irem en ts, or 75 per c e n t, were sou rces o f problem s. The large d i s t r i c t s reported th a t 13 o f th e 16 le g a l requirem ents, or 8 1 .3 per c e n t, had 187 crea ted problems to the d i s t r i c t s . In summary, 13 o f the 16 le g a l requirem ents which members o f the jury had s e le c te d as p o s s ib le sou rces o f d i f f i c u l t y to d i s t r i c t s (8 1 .3 per cen t) had a c tu a lly caused problems to Southern C a lifo r n ia sch o o l d i s t r i c t s . Legal requirem ents id e n t if ie d by the d i s t r i c t s . An a d d itio n a l n in e te en le g a l requirem ents (b e sid es th ose m entioned by the ju ry) were a ls o id e n t if ie d by sch o o l a d m in istra to rs as b ein g sou rces o f problems to the d is t r i c t s . Of t h is number, fo u rteen a p p lied to elem entary d i s t r i c t s , n in e te en to h igh sch o o l d i s t r i c t s , and n in e teen to u n ifie d d i s t r i c t s . A ll n in e te en a ls o a p p lied to the d i s t r ic t s when the la t t e r were c l a s s i f i e d according to s i z e — i . e . , sm a ll, medium, or la r g e . The same numbers o f le g a l requirem ents id e n t if ie d by the d i s t r i c t s a ls o a p p lied to the oth er geographic reg io n s o f the s t a t e —C entral and Northern C a lifo r n ia —and to th e s t a te as a w hole. I t i s seen in Table 1 th a t, when an alyzed in terms o f type o f d i s t r i c t , i t was found th a t in elem entary d i s t r i c t s o f Southern C a lifo r n ia , 4 o f the 14 a p p lica b le le g a l requ irem en ts, or 2 8 .6 per c e n t, had caused problem s. In high sc h o o l d i s t r i c t s , 9 o f the 19 a p p lic a b le re q u ir e m ents, or 4 7 .4 per c e n t, were cau ses o f problem s. In u n ifie d d i s t r i c t s , 6 o f the 19 a p p lic a b le req u irem en ts, or 3 1 .6 per c e n t, had crea ted problem s. 188 In terms o f s iz e o f d i s t r i c t , the sm a ll d i s t r i c t s rep orted th a t 6 o f the 19 le g a l requ irem en ts, or 3 1 .6 per c e n t, had p resen ted problems to the d i s t r i c t s . In the m edium -sized d i s t r i c t s , 5 o f 19, or 2 6 .3 per c e n t, were sou rces o f problem s. The la rg e d i s t r i c t s rep orted 7 o f the 19 le g a l req u irem en ts, or 3 6 .8 per c e n t, to have caused problems to the d i s t r i c t s . In summary, 14 o f the 19 le g a l requirem ents id e n t i f ie d by the d i s t r i c t s , or 73.7 per c e n t, had p resen ted problems to Southern C a lifo rn ia sc h o o l d i s t r i c t s . Legal requirem ents id e n t if ie d by both jury and sc h o o l d i s t r i c t s . Combining the le g a l requirem ents id en t i f i e d by both jury and sc h o o l d i s t r i c t a d m in istra to rs, a t o t a l o f 35 "problem requirem ents" were l i s t e d . Of t h is number, tw e n ty -six a p p lied to elem entary d i s t r i c t s , th ir ty -o n e to high sc h o o l d i s t r i c t s , and t h ir t y - f iv e to u n ifie d d i s t r i c t s . A ll t h ir t y - f iv e item s a ls o a p p lied to the d i s t r i c t s when the l a t t e r were c l a s s i f i e d accord in g to s iz e c a t e g o r i e s - - i . e . , sm a ll, medium, or la r g e . The same number a ls o a p p lied to the combined requirem ents in the oth er geographic areas o f the s ta te --C e n tr a l and Northern C a lifo r n ia --a n d to the s t a t e as a w hole. With r e sp e c t to type o f d i s t r i c t , in the elem entary d i s t r i c t s , 9 o f the 26 le g a l requ irem en ts, or 3 4 .6 per c e n t, were rep orted to have caused problem s. In th e h igh sch o o l d i s t r i c t s , 19 o f 31, or 6 1 .3 per c e n t, were sources o f problem s. In u n ifie d d i s t r i c t s , 19 o f the 35 le g a l requ irem en ts, or 5 4 .3 per c e n t, were reported to have crea ted problem s. A nalyzed in terms o f d i s t r i c t s i z e , the sm all d is t r i c t s rep orted th a t 18 o f the 35 le g a l requ irem en ts, or 5 1 .4 per c e n t, were problem so u rc es. In the m edium -sized d i s t r i c t s , 17 o f 35, or 4 8 .6 per cen t o f le g a l requirem ents had crea ted problems to the d i s t r i c t s . The large d is t r i c t s rep orted 20 o f the 35 le g a l requirem ents, or 5 7 .1 per c e n t, to have caused problem s. In summary, 27 o f the 35 le g a l requirem ents id e n t i f ie d by both jury and d i s t r i c t a d m in istra to rs, or 77.1 per c e n t, were found to have been a c tu a l cau ses o f prob lems to Southern C a lifo r n ia sch o o l d i s t r i c t s . C entral C a lifo rn ia Legal requirem ents m entioned by the ju ry . With re sp ect to the le g a l requirem ents chosen by the ju ry as p o s s ib le sou rces o f d i f f i c u l t y to sch o o l d i s t r i c t s , the C entral C a lifo r n ia resp on ses as summarized are e x h ib ite d in Table 1. I t i s seen th a t, in terms o f type o f d i s t r i c t , in elem entary d i s t r i c t s , 7 o f the 12 a p p lic a b le le g a l requ irem en ts, or 5 8 .3 per c e n t, p resen ted problem s. In high sc h o o l d i s t r i c t s , 5 o f the 12, or 4 1 .7 per c e n t, pre sen ted problem s. In u n ifie d d i s t r i c t s , 8 o f the 16, or 190 50 per c e n t, presented problems to d i s t r i c t s . In tern s o f d i s t r i c t s i z e , the sm all d is t r ic t s reported th a t 6 o f the 16 le g a l requirem ents, or 37.5 per ce n t, had crea ted problem s. In the m edium -sized d is t r ic t s 6 o f 16 requirem ents, or 37.5 per c e n t, had been sources o f d if f i c u l t y . The la rg e d is t r ic t s reported problems w ith resp ect to 9 o f the 16 requirem ents, or 5 6 .3 per ce n t. In summary, 11 o f the 16 le g a l requirem ents chosen by the ju r y , or 68.8 per c e n t, had p resen ted problems to C entral C a lifo rn ia sch o o l d i s t r i c t s . Legal requirem ents id e n tifie d by the d i s t r i c t s . Analyzed in terms o f type o f d i s t r i c t , in the elem entary d is t r ic t s o f C entral C a lifo r n ia , 7 o f the 14 a p p lica b le le g a l requirem ents, or 50 per c e n t, had caused problem s. In the h igh sch o o l d i s t r i c t s , 5 o f 19 requirem ents, or 26.3 per c e n t, had p resented problem s. In u n ifie d d is t r i c t s , 4 o f the 19 requirem ents, or 2 1 .1 per c e n t, had caused problem s. In terms o f d i s t r i c t s i z e , the sm all d is t r ic t s reported th a t one o f the 19 le g a l requirem ents, or 5 .3 per c e n t, had presented a problem. In the m edium -sized d i s t r i c t s , 4 o f 19 le g a l requirem ents, or 2 1 .1 per c e n t, had p resented problem s. The large d i s t r ic t s reported th at 10 o f the 19 requirem ents, or 5 2 .6 per c e n t, had caused problem s. 191 In summary, 10 o f the 19 le g a l requirem ents id e n t i f ie d by the d i s t r i c t s , or 5 2 .6 per c e n t, p resen ted problems to C en tral C a lifo rn ia sch o o l d i s t r i c t s . L egal requirem ents id e n t if ie d by both jury and sch o o l d i s t r i c t s . A n a ly sis in terms o f type o f d i s t r i c t r e v e a ls th a t in the elem entary d i s t r i c t s in C entral C a lifo r n ia , 14 o f the 26 le g a l requ irem en ts, or 5 3 .8 per c e n t, had presen ted problems to th e d i s t r i c t s . In the high sc h o o l d i s t r i c t s , 10 o f 31 requ irem en ts, or 3 2 .3 per cen t,h a d crea ted problem s. In u n ifie d d i s t r i c t s , 12 o f the 35, or 3 4 .3 per c e n t, had caused problem s. With re sp e c t to s iz e o f d i s t r i c t , the sm all d is t r i c t s rep orted th a t 7 o f the 35 le g a l requ irem en ts, or 20 per c e n t, had p resen ted problem s. In th e m edium -sized d i s t r i c t s , 10 o f 35 le g a l requ irem en ts, or 2 8 .6 per c e n t, had caused problems to d i s t r i c t s . The la rg e d i s t r i c t s r e ported 19 o f the 35 requ irem en ts, or 5 4 .3 per c e n t, to be sou rces o f problem s. In summary, 21 o f the 35 le g a l requirem ents e ith e r chosen by the jury or id e n t if ie d by the d i s t r i c t s (60 per cen t) p resen ted problems to C entral C a lifo rn ia sch o o l d i s t r i c t s . 192 Northern C a lifo r n ia Legal requirem ents m entioned by the ju ry . I t i s seen in Table 1 th a t a n a ly s is in terms o f type o f d i s t r i c t r e v e a ls th a t in elem entary d i s t r i c t s in Northern C a lifo rn ia 5 o f th e 12 a p p lic a b le le g a l requ irem en ts, or 4 1 .7 per c e n t, p resen ted problems to the d i s t r i c t s . In the high sch o o l d i s t r i c t s , 6 o f 12 le g a l requ irem en ts, or 50 per c e n t, crea ted problem s. In u n ifie d d i s t r i c t s , 8 o f the 16 requ irem en ts, or 50 per c e n t, caused problem s. With r e sp e c t to d i s t r i c t s i z e , th e sm all d i s t r i c t s rep orted th a t 5 o f the 16 le g a l requ irem en ts, or 3 1 .3 per c e n t, p resen ted problem s, In the m edium -sized d i s t r i c t s , 8 o f 16 requ irem en ts, or 50 per c e n t, were causes o f problem s. The la rg e d i s t r i c t s rep orted 8 o f the 16 r e quirem ents, or 50 per c e n t, to be sou rces o f problems* In summary, 11 o f th e 16 le g a l requirem ents chosen by the ju r y , or 6 8 .8 per c e n t, p resen ted problems to Northern C a lifo rn ia sch o o l d i s t r i c t s . Legal req u irem en ts i d e n t i f i e d by th e d i s t r i c t s . With r e sp e c t to d i s t r i c t ty p e , in the elem entary d i s t r i c t s in Northern C a lifo r n ia , 4 o f the 14 a p p lic a b le le g a l r e quirem ents, or 2 8 .6 per c e n t, p resen ted problem s. In th e h igh sch o o l d i s t r i c t s , 6 o f 19 requ irem en ts, or 3 1 .6 per c e n t, p resen ted problem s. In u n ifie d d i s t r i c t s , 9 o f the 193 19 requirem ents, or 4 7 .4 per c e n t, caused problems. In terms o f d i s t r i c t s i z e , the sm all d is t r ic t s reported th a t 5 o f the 19 le g a l requirem ents, or 26.3 per c e n t, p resen ted problem s. In the m edium -sized d i s t r i c t s , 8 o f the 19 requirem ents, or 4 2 .1 per c e n t, caused prob lem s. The la rg e d is t r ic t s reported 7 o f the 19 req u ire m ents, or 3 6 .8 per c e n t, to be sources o f problem s. In summary, 11 o f the 19 le g a l requirem ents id e n t i f ie d by the d i s t r i c t s , or 5 7 .9 per c e n t, presented problems to Northern C a lifo rn ia sch o o l d i s t r i c t s . Legal requirem ents id e n tifie d by both jury and sch o o l d i s t r i c t s . A n a ly sis o f a l l t h ir t y - f iv e le g a l requirem ents id e n t if ie d by both jury and sch o o l d is t r ic t s on the b a s is o f type o f d i s t r ic t rev ea led th a t in the e l e mentary d i s t r i c t s o f Northern C a lifo r n ia , 9 o f the 26 le g a l requirem ents, or 34.6 per c e n t, presented problems to the d i s t r i c t s . In the h igh sch o o l d i s t r i c t s , 12 o f 31 a p p lica b le requirem ents, or 38.7 per c e n t, caused problem s. In u n ifie d d i s t r i c t s , 17 o f the 35 requirem ents, or 4 8 .6 per c e n t, crea ted problem s. O n the b a sis o f d i s t r ic t s i z e , the sm all d is t r ic t s reported th a t 10 o f the 35 le g a l requirem ents, or 2 8 .6 per c e n t, presen ted problem s. In the m edium -sized d i s t r i c t s , 16 o f 35, or 4 5 .7 per c e n t, p resen ted problem s. The large d i s t r i c t s reported 15 o f the 35 requirem ents, or 4 2 .9 per 194 c e n t, to be sou rces o f problem s. In summary, 22 o f the 35 le g a l requirem ents th a t were e ith e r chosen by the ju ry or id e n t if ie d by the d is t r i c t s , or 6 2 .9 per c e n t, had caused problems to Northern C a lifo rn ia sch o o l d i s t r i c t s . C a lifo r n ia as a Whole Legal requirem ents chosen by the ju r y . As i s shown in Table 1 , when a l l C a lifo rn ia d i s t r i c t s surveyed were an alyzed on the b a sis o f type o f d i s t r i c t , elem entary d is t r i c t s rep orted th a t 9 o f the 12 a p p lic a b le le g a l req u ire m ents, or 75 per c e n t, p resen ted problems to them. In the high sc h o o l d i s t r i c t s , 12 o f the 12 requirem ents (100 per cen t) were sou rces o f problem s. In u n ifie d d i s t r i c t s , 14 o f th e 16 requirem ents, or 87.5 per c e n t, had caused problem s. With re sp e c t to d i s t r i c t s i z e , the sm all d i s t r i c t s rep orted th a t 13 o f the 16 le g a l requ irem en ts, or 8 1 .3 per c e n t, p resen ted problem s. In the m edium -sized d i s t r i c t s , 14 o f th e 16 requ irem en ts, or 87.5 per c e n t, caused prob lem s. The la rg e d i s t r i c t s rep orted 14 o f th e 16 re q u ir e m ents, or 87.5 per c e n t, to be sou rces o f problem s. In summary, 15 o f the 16 le g a l requirem ents men tio n ed by the ju r y , or 9 3 .8 per c e n t, p resen ted problems to C a lifo r n ia sch o o l d i s t r i c t s . 195 Legal requirem ents id e n t if ie d by the d i s t r i c t s . When the n in e te en le g a l requirem ents id e n t if ie d by the d i s t r i c t s as having crea ted problems were an alyzed in terms o f type o f d i s t r i c t , i t was seen th a t in the elem en ta ry d i s t r i c t s 11 o f the 14 a p p lic a b le le g a l req u irem en ts, or 78.6 per c e n t, had p resen ted problem s. In the high sch o o l d i s t r i c t s , 12 o f th e 19 requ irem en ts, or 63.2 per c e n t, were sou rces o f problem s. In u n ifie d d i s t r i c t s , 14 o f the 19 requirem ents, or 73.7 per c e n t, had crea ted problem s. O n the b a s is o f d i s t r i c t s i z e , the sm all d i s t r i c t s reported th a t 9 o f the 19 le g a l requ irem en ts, or 4 7 .4 per c e n t, p resen ted problem s. In the m edium -sized d i s t r i c t s , 11 o f the 19 requirem ents, or 58 per c e n t, caused problem s. The la rg e d i s t r i c t s rep orted 15 o f the 19 req u irem en ts, or 78.9 per c e n t, to have crea ted problem s. In summary, a l l 19 le g a l requirem ents id e n t if ie d by the d i s t r i c t s (100 per cen t) p resen ted problems to C a lifo rn ia sch o o l d i s t r i c t s . Legal requirem ents id e n t if ie d by both jury and sch o o l d i s t r i c t s . When a l l t h ir t y - f iv e le g a l requirem ents id e n t if ie d by ju ry and d i s t r i c t a d m in istra to rs were analyzed fo r a l l C a lifo rn ia d i s t r i c t s surveyed on the b a s is o f type o f d i s t r i c t (see Table 1 ) , i t was found th a t in the elem entary d i s t r i c t s , 20 o f the 26 a p p lic a b le le g a l 196 req u irem en ts, or 7 6 .9 per c e n t, had p resen ted problem s. In the h igh sch o o l d i s t r i c t s , 24 o f the 31 requirem ents th a t a p p lie d , or 7 7 .4 per c e n t, were sou rces o f problem s. In u n ifie d d i s t r i c t s , 28 o f th e 35 requ irem en ts, or 80 per c e n t, had crea ted problem s. In terms o f d i s t r i c t s i z e , the sm all d i s t r i c t s r e ported th a t 22 o f the 35 le g a l requirem ents, or 6 2 .9 per c e n t, had caused problem s. In the m edium -sized d i s t r i c t s , 25 o f the 35, or 7 1 .4 per c e n t, had p resen ted problem s. The la rg e d i s t r i c t s rep orted th a t 29 o f the 35 requirem ents (8 2 .7 per ce n t) had caused problem s. In summary, 34 o f the 35 le g a l requirem ents th a t were id e n t if ie d e ith e r by the ju ry or by sch o o l d i s t r i c t a d m in istra to rs (9 7 .1 per cen t) had caused problems to C a lifo rn ia sch o o l d i s t r i c t s . A ctu al versu s P o ssib le Number o f Problems Created by C urricular L e g isla tio n A n a ly sis i s here made o f the number o f p o ssib le problems id e n t if ie d by ju ro rs and by d is t r i c t ad m in istra to r s th a t became a c tu a l problems to sc h o o l d i s t r i c t s in th e three geographic reg io n s o f C a lifo r n ia —Southern, C en tra l, and Northern. A gain, the a n a ly s is i s made a c cording to type and s iz e o f d i s t r i c t s . The data are summarized in Table 2. Separate TABLE 2 N U M B E R A N D P E R C E N T A G E O F POSSIBLE P R O B L E M S T H A T W E R E A C T U A L L Y E N C O U N T E R E D B Y S C H O O L DISTRICTS Items Chosen Items Id en tified by the Jury by D istric ts Combined (N=16) (N«19) (N=35) No. of Problems No. of Problems No. of Problems D istric ts Possible Per Possible Per Possible Per Actual cent Actual cent Actual cent S O U T H E R N CALIFO RN IA: Elementary 36 8 22.0 42 4 9.5 78 12 15.4 High School 36 14 38.8 57 9 15.8 93 23 24.7 Unified 48 33 68.7 57 6 10.5 105 39 37.1 Small 40 19 47.5 52 6 11.5 92 25 27.2 Medium 40 17 42.5 52 5 9.6 92 22 23.9 Large 40 19 47.5 52 8 15.4 92 27 29.3 Total 120 55 45.8 156 19 12.2 276 . 74 28.9 < A L CALIFO RN IA: Elementary 36 12 33.3 42 8 19.0 78 20 25.6 High School 36 8 22.2 57 5 8.8 93 13 14.0 Unified 48 14 29.2 57 5 8.8 105 19 18.1 Small 40 10 25.0 52 1 1.9 92 11 11.9 Medium 40 8 20.0 52 4 7.7 92 12 13.0 Large 40 16 40.0 52 13 25.0 92 29 31.5 Total 120 34 28.3 156 18 11.5 276 52 20.3 Small Medium Large Total N O R T H E R N C A LIFO RN IA : Elementary High School Unified Small Medium Large Total ALL C A LIFO R N IA : Elementary High School Unified Small Medium Large Total 40 10 25.0 40 8 20.0 40 16 40.0 120 34 28.3 36 10 27.7 36 7 19.4 48 12 33.3 40 5 12.5 40 12 30.0 40 12 30.0 120 29 24.2 108 30 27.7 108 29 26.9 144 59 41.0 120 34 28.3 120 37 30.8 120 47 39.2 360 118 32.8 52 1 1.9 92 11 11.9 52 4 7.7 92 12 13.0 52 13 25.0 92 29 31.5 156 18 11.5 276 52 20.3 42 4 9.5 78 14 17.9 57 8 14.0 93 15 16.1 57 15 26.3 105 27 25.7 52 5 9.6 93 10 10.9 52 12 23.1 92 24 26.1 52 10 19.2 92 22 23.9 156 27 17.3 276 56 21.9 126 16 12.7 234 46 19.7 171 22 12.9 279 51 18.3 171 26 15.2 315 85 27.0 156 12 7.7 276 46 16.7 156 21 13.5 276 58 21.1 156 31 19.9 276 78 28.3 468 64 13.7 828 182 22.0 197 198 s e c tio n s are devoted to each geographic reg io n and to C a lifo rn ia as a whole. Southern C a lifo rn ia Legal requirem ents chosen by the j u r y . A t o t a l o f s ix te e n le g a l requirem ents were mentioned by the ju ry as p o ssib le sources o f d i f f i c u l t y to school d i s t r i c t s . Of th i s number, twelve a p p lie d to elem entary d i s t r i c t s . Each requirem ent re p re se n te d a p o s s ib le problem to a l l th re e o f the d i s t r i c t s ; th e r e f o r e , th e re was a p o s s i b i l i t y th a t t h i r t y - s i x problems could be caused by the le g a l requirem ents in elem entary school d i s t r i c t s in Southern C a lif o rn ia . Twelve requirem ents a p p lie d to h ig h school d i s t r i c t s . Each requirem ent re p re se n te d a p o ssib le prob lem to a l l th re e o f the d i s t r i c t s ; th e re f o r e , th e re was th e p o s s i b i l i t y th a t t h i r t y - s i x problems could be caused by the le g a l requirem ents th a t p e rta in e d to h igh school d i s t r i c t s in Southern C a lif o rn ia . A ll s ix te e n le g a l requirem ents m entioned by the ju ry a p p lie d to u n if ie d school d i s t r i c t s . Each requirem ent re p re se n te d a p o ssib le problem to a l l th re e o f the d i s t r i c t s ; th e re fo r e , th e re was the p o s s i b i l i t y th a t f o r ty - e ig h t problems could be caused by the le g a l requirem ents fo r u n if ie d school d i s t r i c t s in Southern C a lif o r n ia . W ith re s p e c t to the type o f d i s t r i c t , twelve le g a l requirem ents could p o ssib ly have p re se n te d problems to 199 elem entary d i s t r i c t s , tw elve cou ld have p resen ted problems to h igh sch o o l d i s t r i c t s , and s ix te e n cou ld have caused problems to u n ifie d d i s t r i c t s - - a t o t a l o f fo r ty p o s s ib le problems to each s iz e c l a s s i f i c a t i o n . A n a ly sis o f the p o s s ib le number o f problems crea ted fo r a l l nine d i s t r i c t s in Southern C a lifo r n ia on th e b a sis o f type o f d i s t r i c t y ie ld e d a t o t a l o f 120 p o s s i b i l i t i e s , as d id a n a ly s is on the b a s is o f s i z e . In terms o f type o f d i s t r i c t , in th e elem entary d is t r i c t s , there were 8 a c tu a l problems th a t developed among 36 p o s s ib le problem s; in other w ords, elem entary d i s t r i c t s a c tu a lly exp erien ced one f i f t h , or 22 per cen t as many problems as th ey might have. In the h igh sch o o l d i s t r i c t s , 14 o f a p o s s ib le 36, or 38.8 per c e n t, p o s s ib le problems developed in to a c tu a l problem s. In u n ifie d d i s t r i c t s , 33 o f a p o s s ib le 4 8 , or 6 8 .7 per c e n t, became a c tu a l problem s. In terms o f d i s t r i c t s i z e , the sm a ll d i s t r i c t s r e ported th a t 19 o f the 40 p o s s ib le problem s, or 4 7 .5 per c e n t, became a c tu a l problem s. In the m edium -sized d is t r i c t s , 17 o f 40 p o s s ib le problem s, or 4 2 .5 per c e n t, became a c tu a l problem s. The la rg e d i s t r i c t s rep orted 19 o f the 40 p o s s ib le problem s, or 4 7 .5 per c e n t, to have a c tu a liz e d . In summary, among the 16 le g a l requirem ents chosen by the ju r y , 55 o f 120 p o ssib le problem s, or 4 5 .8 per c e n t, were exp erien ced a s a c tu a l problems in Southern 200 C a lifo rn ia sch o o l d i s t r i c t s . Legal requirem ents id e n t i f i e d by the d i s t r i c t s . N ineteen le g a l requirem ents (in a d d itio n to those chosen by th e ju ry ) were i d e n t i f i e d by school d i s t r i c t s . Of t h i s number, fo u rte e n a p p lie d to elem entary d i s t r i c t s . Each requirem ent re p re se n te d a problem to a l l th re e of the d i s t r i c t s ; th e r e f o r e , th e re was a p o s s i b i l i t y of fo rty -tw o problems caused by the le g a l requirem ents fo r elem entary school d i s t r i c t s in Southern C a lif o rn ia . N ineteen re q u ire ments a p p lie d to h igh school d i s t r i c t s . Each requirem ent re p re se n te d a p o ssib le problem to the th re e d i s t r i c t s , so th e re was a p o s s i b i l i t y of f if ty - s e v e n problems r e s u l t ing from th e le g a l requirem ents fo r high school d i s t r i c t s in Southern C a lif o rn ia . A ll n in e te e n le g a l requirem ents a p p lie d to u n if ie d school d i s t r i c t s . Each requirem ent re p re se n te d a p o ssib le problem to a l l th re e d i s t r i c t s ; th e re was th e re fo re a p o s s i b i l i t y o f f if ty - s e v e n problems t h a t could be caused by th e le g a l requirem ents fo r u n if ie d school d i s t r i c t s in Southern C a lif o rn ia . With re s p e c t to th e th re e s iz e c l a s s i f i c a t i o n s , fo u rte e n le g a l requirem ents posed p o ssib le problems to elem entary d i s t r i c t s , n in e te e n to h igh school d i s t r i c t s , and n in e te e n to u n if ie d d i s t r i c t s - - a t o t a l o f f ifty -tw o p o ssib le problems fo r a l l s iz e c l a s s i f i c a t i o n s . Adding a l l p o ssib le problems fo r a l l n in e d i s t r i c t s 201 in Southern C a lifo rn ia as c l a s s i f i e d by type y ie ld e d a t o t a l o f 156 p o s s i b i l i t i e s , as d id adding them on the b a sis o f s i z e . T h erefore, the le g a l requirem ents id e n t i f ie d by the d is t r ic t s rep resen ted 156 p o ssib le problems for Southern C a lifo rn ia sch ool d i s t r i c t s . O n the b a sis o f type o f d i s t r i c t , i t was found th a t in elem entary d i s t r i c t s , th ere were 4 a c tu a l problems out o f 42 p o ssib le problem s, or 9 .5 per cent as many prob lems as there might have been. In the high sch o o l d is t r i c t s , 9 o f 57 p o ssib le problem s, or 15.8 per c e n t, became a c tu a l problem s. In u n ifie d d i s t r i c t s , 6 o f 57 p o ssib le problem s, or 10.5 per c e n t, were a c tu a l problem s. In terms o f s iz e o f d i s t r i c t , sm all d i s t r i c t s r e ported th a t 6 o f the 52 p o ssib le problem s, or 11.5 per c e n t, became a c tu a l problem s. In the m edium -sized d is t r i c t s , 5 o f 52 p o ssib le problem s, or 9 .6 per c e n t, were a c tu a l problem s. In large d i s t r i c t s , 8 o f 52 p o s s ib le problem s, or 15.4 per c e n t, turned out to be a c tu a l prob lem s. In summary, 19 o f the 156 p o ssib le problems id e n t i fie d by the d is t r ic t s (1 2 .2 per cen t) were a c tu a l problems to Southern C a lifo rn ia sch ool d i s t r i c t s . Legal requirem ents id e n t if ie d by both jury and sch o o l d i s t r i c t s . A t o t a l o f t h ir t y - f iv e le g a l req u ire ments were chosen by the jury and id e n t if ie d by sch o o l 202 d i s t r i c t s . Of t h is number, tw e n ty -six a p p lied to elem en tary sch ool d i s t r i c t s . Each o f the requirem ents rep re sen ted a p o ssib le problem to a l l th ree d i s t r i c t s , so th a t there was a p o s s ib ilit y o f se v e n ty -e ig h t problems caused by the le g a l requirem ents to elem entary d is t r ic t s in Southern C a lifo r n ia . T hirty-one requirem ents a p p lied to high sch o o l d i s t r i c t s . Each requirem ent represented a p o ssib le problem to a l l th ree d i s t r i c t s ; there was th erefo re a p o s s ib ilit y o f n in e ty -th r e e problems th at could be caused by the requirem ents for h igh sch ool d is t r ic t s in Southern C a lifo r n ia . A ll t h ir t y - f iv e le g a l requirem ents ap p lied to u n ifie d d i s t r i c t s . Each requirem ent rep resen ted a p o ssib le problem to a l l th ree d i s t r ic t s ; th e r e fo r e , there was a p o s s ib ilit y o f 105 problems th a t could be caused by the le g a l requirem ents fo r u n ifie d sch o o l d is t r ic t s in Southern C a lifo r n ia . In each s iz e c l a s s if ic a t io n there was an elem entary, a high sc h o o l, and a u n ifie d sch ool d i s t r i c t . T w enty-six le g a l requirem ents were p o ssib le problems for the elem en tary d i s t r i c t s , th ir ty -o n e fo r high sch o o l d i s t r i c t s , and t h ir t y - f iv e fo r u n ifie d d i s t r i c t s , g iv in g a t o t a l o f n in ety-tw o p o s s ib le problems in each s iz e c l a s s if ic a t io n . Combining the p o ssib le problems for a l l n ine d is t r i c t s in Southern C a lifo rn ia c l a s s i f i e d by type gave a t o t a l o f 276 p o s s i b i l i t i e s , as did combining them on the b a sis o f d i s t r ic t s iz e . T h erefore, the le g a l requirem ents 203 id e n t if ie d by both jury and d i s t r i c t s rep resen ted 276 p o s s ib le problems fo r Southern C a lifo r n ia sch o o l d i s t r i c t s . In th e elem entary d i s t r i c t s th ere were 12 a c tu a l problems out o f th e 78 p o s s ib le problem s; in o th er words, th ere were 15.4 per cent as many problems as th ere might have been. In h igh sch o o l d i s t r i c t s 23 o f the 93 p o s s ib le problem s, or 24.7 per c e n t, were a c tu a l problem s. In the u n ifie d d i s t r i c t s , 39 o f th e 105 p o s s ib le problem s, or 3 7 .1 per c e n t, were a c tu a l problem s. The sm all d i s t r i c t s re p o rte d t h a t 25 o f th e 92 pos s ib l e problem s, o r 27.2 p e r c e n t, were a c tu a l problem s. In the m edium -sized d i s t r i c t s , 22 o f the 92 p o s s ib le prob lem s, or 2 3 .9 per c e n t, were a c tu a l problem s. The large d i s t r i c t s reported 27 o f th e 92 p o s s ib le problem s, or 2 9 .3 per c e n t, to be a c tu a l problem s. In summary, i t was found th a t in the le g a l re q u ir e ments id e n t if ie d by both ju ry and d i s t r i c t s , 72 o f the 276 p o s s ib le problem s, or 2 8 .9 per c e n t, a c tu a lly became problems to Southern C a lifo rn ia sc h o o l d i s t r i c t s . C e n tra l C a lifo rn ia Legal requirem ents chosen by th e ju r y . The le g a l req u irem en ts m entioned by the ju r y re p re s e n te d 120 p o s s ib le problems fo r C e n tra l C a lifo rn ia sc h o o l d i s t r i c t s . In elem entary d i s t r i c t s th ere were 12 a c tu a l prob lems th a t developed out o f 36 p o s s i b i l i t i e s ; in oth er 204 words, there were only one th ir d (3 3 .3 per cen t) as many problems as th ere m ight have been. In the high sc h o o l d i s t r i c t s , 8 o f th e 36 p o s s ib le problem s, or 2 2 .2 per c e n t, became a c tu a l problem s. In u n ifie d d i s t r i c t s , 14 o f the 48 p o s s ib le problem s, or 2 9 .2 per c e n t, became a c tu a l problem s. The sm all d i s t r i c t s rep orted th a t 10 o f the 40 pos s ib le problem s, or 25 per c e n t, became a c tu a l problem s. In th e m edium -sized d i s t r i c t s , 8 o f the 40 p o s s ib le prob lem s, or 20 per c e n t, were a c tu a l problem s. The la rg e d i s t r i c t s rep orted 16 o f the 40 p o s s ib le problem s, or 40 per c e n t, to be a c tu a l problem s. In summary, o f the 120 le g a l requirem ents which the jury thought might cr ea te problems fo r d i s t r i c t s , 34, or 2 8 .3 per c e n t, a c tu a lly became problems to C entral C a lifo r n ia sc h o o l d i s t r i c t s . Legal req u irem en ts i d e n t i f i e d by th e d i s t r i c t s . The le g a l requirem ents id e n t if ie d by the d i s t r i c t s rep re sen ted 156 p o s s ib le problems fo r C entral C a lifo rn ia sch o o l d i s t r i c t s . In the elem entary d i s t r i c t s there were 8 a c tu a l problems out o f 42 p o s s i b i l i t i e s ; in oth er words, there were 19 per cen t as many problems as th ere might have been. In the high sch o o l d i s t r i c t s , 5 o f 57 p o s s ib le problem s, or 8 .8 per c e n t, became a c tu a l problem s. In u n ifie d 205 d i s t r i c t s , 5 o f the 57 p o s s i b i l i t i e s , or 8 .8 per c e n t, a c tu a lly became problem s. The sm all d i s t r i c t s rep orted th a t one o f the 52 p o s s ib le problem s, or 1.9 per c e n t, a c tu a lly caused a prob lem to the d i s t r i c t . In the m edium -sized d i s t r i c t s , 4 o f the 52, or 7 .7 per c e n t, became problem s. The la rg e d is t r i c t s rep orted th a t 13 o f th e 5 2 , or 25 per c e n t, had a c tu a lly caused problem s. In summary, in the le g a l requirem ents id e n t if ie d by the d i s t r i c t s , 18 o f the 156 p o s s ib le problem s, or 11.5 per c e n t, had a c tu a lly developed in C entral C a lifo rn ia sch o o l d i s t r i c t s . Legal requirem ents id e n t if ie d by both jury and sc h o o l d i s t r i c t s . The le g a l requirem ents m entioned by the jury and id e n t if ie d by th e d i s t r i c t s rep resen ted 276 p o s s ib le problems fo r C entral C a lifo rn ia sc h o o l d i s t r i c t s . In the elem entary d i s t r i c t s th ere were 20 a c tu a l problems th a t developed among the 78 p o s s ib le problems id e n tifie d ; in oth er words, th ere were 2 5 .6 per cen t as many problems as th ere might have been. In the high sch o o l d i s t r i c t s , 13 o f 93 p o s s ib le problem s, or 14 per c e n t, a c tu a lly crea ted problem s. In u n ifie d d i s t r i c t s , 19 o f 105 p o s s i b i l i t i e s , or 1 8 .1 per c e n t, p resen ted a c tu a l problem s. The sm all d i s t r i c t s rep orted th a t 11 o f the 92 206 p o ssib le problem s, or 11.9 per c e n t, were a c tu a l problem s. In the m edium -sized d i s t r i c t s , 12 o f the 92 p o ssib le problem s, or 13.0 per c e n t, a c tu a lly developed. The large d is t r i c t s reported th at 29 o f the 92 p o s s i b i l i t i e s , or 31.5 per c e n t, a c tu a lly developed. In summary, in the le g a l requirem ents m entioned by the jury and id e n tifie d by d i s t r i c t s , 52 o f 276 p o s s ib le problem s, or 2 0 .3 per c e n t, a c tu a lly caused problems to C entral C a lifo rn ia sch ool d i s t r i c t s . N orthern C a lifo rn ia Legal requirem ents chosen by th e ju r y . The le g a l requirem ents m entioned by th e ju ry re p re se n te d 120 p o s s i b le problems fo r school d i s t r i c t s in N orthern C a lifo rn ia . In the elem entary d is t r ic t s there were 10 a c tu a l problems among 36 p o ssib le problems; in other words, there were 27.7 per cen t as many problems as there might have been. In the high sch o o l d i s t r i c t s , 7 o f the 36 p o ssib le problem s, or 19.4 per c e n t, a c tu a lly became problem s. In u n ifie d d i s t r i c t s , 12 o f the 48 p o s s i b i l i t i e s , or 33.3 per c e n t, became a ctu a l problem s. The sm all d i s t r i c t s reported th a t 5 o f the 40 p o ssib le problem s, or 12.5 per c e n t, became a c tu a l prob lem s. In the m edium -sized d i s t r i c t s , 12 o f the 40 pos s ib le problem s, or 30 per c e n t, developed in to a c tu a l problem s. The large d i s t r i c t s reported th at 12 o f the 40, 207 or 30 per c e n t, a c tu a lly became problem s. In summary, o f the 120 p o s s ib le problems m entioned by the ju r y , 29, or 2 4 .2 per c e n t, a c tu a lly developed in sc h o o l d i s t r i c t s in Northern C a lifo r n ia . Legal requirem ents id e n t if ie d by the d i s t r i c t s . The le g a l requirem ents id e n t if ie d by the d i s t r i c t s rep re sen ted 156 p o s s ib le problems fo r Northern C a lifo rn ia sc h o o l d i s t r i c t s . In the elem entary d i s t r i c t s th ere were 4 a c tu a l problems out o f 42 p o s s i b i l i t i e s ; in oth er words, there were 9 .5 per cen t as many problems as there m ight have b een . In the h igh sch o o l d i s t r i c t s , 8 o f the 57 p o s s ib le problem s, or 14 per c e n t, became a c tu a l problem s. In the u n ifie d d i s t r i c t s , 15 o f the 57 p o s s i b i l i t i e s , or 2 6 .3 per c e n t, became a c tu a l problem s. The sm all d i s t r i c t s rep o rted th a t 5 o f the 52 pos s ib le problem s, or 9 .6 per c e n t, were a c tu a lly exp erien ced . In the m edium -sized d i s t r i c t s , 12 o f 52 p o s s ib le problem s, or 2 3 .1 per c e n t, became a c tu a l problem s. The la rg e d is t r i c t s rep orted th a t 10 o f 52 p o s s ib le problem s, or 19.2 per c e n t, a c tu a lly d eveloped. In summary, o f the 156 p o s s ib le problems id e n t if ie d by the d i s t r i c t s , 27, or 17.3 per c e n t, a c tu a lly became problems in sch o o l d i s t r i c t s in Northern C a lifo r n ia . 208 Legal req u irem en ts i d e n t i f i e d by both ju ry and sc h o o l d i s t r i c t s . The le g a l requirem ents m entioned by th e ju r y and i d e n t i f i e d by d i s t r i c t a d m in is tra to rs r e p r e se n te d 276 p o s s ib le problems fo r N orthern C a lifo rn ia sch o o l d i s t r i c t s . In the elem entary d i s t r i c t s th ere were 14 a c tu a l problems out o f the 78 p o s s i b i l i t i e s ; in other words, th ere were 17.9 per cen t as many problems as th ere m ight have been. In th e h igh sc h o o l d i s t r i c t s , 15 o f the 93 p o s s ib le problem s, or 16.1 per c e n t, developed in to a c tu a l problem s. In u n ifie d d i s t r i c t s , 27 o f the 105 p o ssib le problem s, or 2 5 .7 per c e n t, became a c tu a l problem s. The sm all d i s t r i c t s rep orted th a t 10 o f the 92 p o s s ib le problem s, or 10.9 per c e n t, became a c tu a l problem s. In th e m edium -sized d i s t r i c t s , 24 o f the 92 p o s s ib le prob lem s, or 2 6 .1 per c e n t, became a c tu a l problem s. The large d i s t r i c t s rep orted th a t 22 o f the 92, or 23.9 per c e n t, became a c tu a l problem s. In summary, in th e le g a l requirem ents which the ju r y and d i s t r i c t a d m in is tra to rs i d e n t i f i e d as p o ssib le problem s, 56 of 276 p o s s i b i l i t i e s , o r 21.9 p e r c e n t, became a c tu a l problems to N orthern C a lifo rn ia school d i s t r i c t s . C a lif o r n ia as a Whole Legal req u irem en ts chosen by th e ju r y . Combining the number o f p o s s ib le problems fo r a l l tw enty-seven d i s t r i c t s in C a lifo r n ia , c l a s s i f i e d according to type o f d i s t r i c t , y ie ld e d a t o t a l o f 360 p o s s ib le problem s, as did adding them on the b a s is o f s i z e . T h erefore, the le g a l requirem ents chosen by th e jury rep resen ted 360 p o s s ib le problems fo r C a lifo r n ia sch o o l d i s t r i c t s . In the elem entary d i s t r i c t s th ere were 30 a c tu a l problems among 108 p o s s i b i l i t i e s ; in oth er words, th ere were 27.7 per cent as many problems as th ere might have b een . In th e high sc h o o l d i s t r i c t s , 29 o f 108 p o s s ib le problem s, or 2 6 .9 per c e n t, became a c tu a l problem s. In u n ifie d d i s t r i c t s , 59 o f 144, or 41 per c e n t, developed in to a c tu a l problem s. The sm all d i s t r i c t s rep orted th a t 34 o f the 120 p o s s ib le problem s, or 2 8 .3 per c e n t, became a c tu a l prob lem s. In the m edium -sized d i s t r i c t s , 37 o f the 120 pos s ib le problem s, or 3 0 .8 per c e n t, became problem s. The f la rg e d i s t r i c t s reported th a t 47 o f the 120 p o s s i b i l i t i e s , or 39.2 per c e n t, became a c tu a l problem s. In summary, i t was found th a t 118 o f the 360 p o s s ib le problems in h eren t in le g a l requirem ents m entioned by the jury a c tu a lly developed in to problems for sch o o l d i s t r i c t s in C a lif o r n ia .v Legal requirem ents id e n t if ie d by the d i s t r i c t s . The le g a l req u irem en ts i d e n t i f i e d by th e d i s t r i c t s 210 rep resen ted 468 p o ssib le problems fo r C a lifo rn ia sch ool d i s t r i c t s . In the elem entary d is t r ic t s there were 16 a c tu a l problems th a t developed out o f 126 p o s s i b i l i t i e s ; in other words, there were 12.7 per cent as many problems as there might have been. In the high sch ool d i s t r i c t s , 22 o f the 171 p o s s ib le problem s, or 12.9 per c e n t, developed in to a c tu a l problem s. In u n ifie d d i s t r i c t s , 26 o f 171 p o s s i b i l i t i e s , or 15.2 per c e n t, m a te r ia liz e d in to a c tu a l problem s. The sm all d i s t r i c t s reported th a t 12 o f the 156 p o ssib le problem s, or 7.7 per c e n t, became a c tu a l prob lem s. In the m edium -sized d i s t r i c t s , 21 o f 156 p o ssib le problem s, or 13.5 per c e n t, became problem s. The large d i s t r i c t s reported th a t 31 o f the 156, or 19.9 per c e n t, developed in to a c tu a l problem s. In summary, 64 o f the 156 p o ssib le problems in h er ent in the le g a l requirem ents mentioned by the d i s t r i c t a d m in istra to rs, or 13.7 per c e n t, a c tu a lly developed in to problems fo r sch o o l d i s t r i c t s in C a lifo r n ia . Legal requirem ents id e n tifie d by both jury and sch o o l d i s t r i c t s . The le g a l requirem ents id e n tifie d both by the jury and by the d i s t r i c t ad m in istrators rep resen ted 828 p o ssib le problems fo r C a lifo rn ia sch o o l d i s t r i c t s . 211 In the elem entary d i s t r i c t s th ere were 46 a c tu a l problems out o f 234 p o s s ib le problems id e n tifie d ; in oth er words, th ere were 19.7 per cen t as many problems as th ere might have b een . In the h igh sch o o l d i s t r i c t s , 51 o f the 279 p o s s ib le problem s, or 18.3 per c e n t, a c tu a lly became problem s. In u n ifie d d i s t r i c t s , 85 o f the 315 p o ssib le problem s, or 27 per c e n t, became a c tu a l problem s. The sm all d i s t r i c t s rep orted th a t 46 o f the 276 p o s s ib le problem s, or 16.7 per c e n t, developed in to a c tu a l problem s. In the m edium -sized d i s t r i c t s , 58 o f the 276 p o s s ib le problem s, or 2 1 .1 per c e n t, became problem s. The large d i s t r i c t s rep orted th a t 78 o f the 276, or 2 8 .3 per c e n t, became a c tu a l problem s. In summary, 182 o f the 828 p o s s ib le problems in h er ent in the le g a l requirem ents id e n t if ie d by both jury and sc h o o l d i s t r i c t s , or 22 per c e n t, a c tu a lly developed in to problems fo r sch o o l d i s t r i c t s in C a lifo r n ia . Summary The ex p erien ces o f a l l d i s t r i c t s in clu d ed in the su rv ey , as they p erta in ed to problems encountered in attem p ting to carry out the p ro v isio n s o f Code re q u ir e ments regard in g curriculum m atters are summarized in Table 3. D is t r ic t s are c l a s s i f i e d by geographic reg io n s o f the s t a t e , and by s iz e and type o f o rg a n iz a tio n . I t may be seen in t h is ta b le th a t the type and 212 TABLE 3 RANK ORDER LISTING OF TYPE AND SIZE OF DISTRICTS, ACCORDING TO NUM BER OF PROBLEMS ACTUALLY ENCOUNTERED Number o f Rank D i s t r i c t D i s t r i c t P roblem s O rd e r R egion S iz e Type E n c o u n te re d 1 S o u th e rn C a l i f o r n i a Sm all U n ifie d 14 2 N o rth e rn C a l i f o r n i a Medium U n ifie d 13 2 S o u th e rn C a l if o r n ia L arg e U n ifie d 13 4 S o u th e rn C a l i f o r n i a Medium U n ifie d 12 5 C e n tr a l C a l if o r n ia L arg e E lem en tary 10 5 C e n tr a l C a l if o r n ia L arg e U n ifie d 10 7 C e n tr a l C a l if o r n ia L arg e H igh S chool 9 7 N o rth e rn C a l if o r n ia L arg e U n ifie d 9 9 S o u th e rn C a l if o r n ia S m all H igh School a 9 S o u th e rn C a l i f o r n i a L arg e H igh S chool 8 11 S o u th e rn C a l if o r n ia Medium H igh S chool 7 11 N o rth e rn C a l if o r n ia L arg e E lem en tary 7 13 S o u th e rn C a l if o r n ia L arg e E lem en tary b 13 C e n tr a l C a l if o r n ia Medium U n ifie d 6 13 N o rth e rn C a l if o r n ia Medium H igh S chool 6 16 C e n tr a l C a l if o r n ia S m all E lem en tary 5 16 C e n tr a l C a l i f o r n i a Medium E lem en tary 5 16 N o rth e rn C a l if o r n ia Medium E lem en tary 5 16 N o rth e rn C a l if o r n ia L arge H igh S chool 3 213 TABLE 3 (continued) RANK ORDER LISTING OF TYPE A N D SIZE OF DISTRICTS, ACCORDING TO NU M BER OF PROBLEMS ACTUALLY ENCOUNTERED Number o f Rank D i s t r i c t D i s t r i c t Problem s O rd er R egion S is e Type E n co u n tered 16 Northern California Small Unified 5 21 Northern California Small High School 4 22 Southern California Small Elementary 3 22 Southern California Medium Elementary 3 22 Central California Small High School 3 22 Central California Small Unified 3 26 Central California Medium High School 1 26 Northern California Small Elementary 1 T o ta l Number o f Problem s 181 A verage p e r D i s t r i c t 6 .7 s iz e o f d i s t r i c t th a t encountered the g r e a te s t number o f problems was a sm all u n ifie d d i s t r i c t in the Southern part o f the s t a t e . This d i s t r i c t was in f i r s t rank p o s i t io n , and encountered fou rteen problem s. In second p lace were a m edium -sized u n ifie d d i s t r i c t in Northern C a lifo r n ia and a la rg e u n ifie d d i s t r i c t in Southern C a lifo r n ia , both rep o rtin g th ir te e n problem s. Next in rank order was a m edium -sized u n ifie d d i s t r i c t in Southern C a lifo rn ia which rep orted tw elve problem s e c t io n s . Two d i s t r i c t s were t ie d for f i f t h p la c e , each w ith ten problem ex p erien ces; both d i s t r i c t s were lo c a te d in the C entral part o f the s t a t e , a large elem entary and a la rg e u n ifie d sch o o l d i s t r i c t . I t i s in te r e s tin g to observe from the data summar iz ed in th is ta b le th a t twenty d i s t r i c t s exp erien ced f iv e or more problems w ith re sp e c t to le g a l requirem ents > imposed by the le g is la t u r e in the area o f curriculum . Among th e se d i s t r i c t s , the g r e a te s t numbers o f problems were exp erien ced in Southern C a lifo r n ia , in la rg e and in u n ifie d sch o o l d i s t r i c t s . Sm aller d i s t r i c t s appeared to be le a s t lik e ly to encounter problems o f t h is n atu re. Problems Caused by S p e c ific Legal Requirements S ix ty -n in e s p e c if ic le g a l requirem ents are con ta in ed in mandatory or p r o h ib itiv e measures p e r ta in in g to the curriculum o ffe r e d in C a lifo r n ia s c h o o ls . S ix te e n o f th ese were chosen by the ju ry as b ein g p o s s ib le sou rces o f 215 d i f f i c u l t y to d i s t r i c t s . They are summarized in Table 4 . N ineteen o th er le g a l requirem ents were id e n tifie d by d is t r i c t a d m in istra to rs as having caused problems to the d i s t r i c t s . These s p e c if ic Code s e c tio n s are id e n t if ie d in Table 5 . One o f the t h ir t y - f iv e item s thus id e n t if ie d by ju rors and d i s t r i c t a d m in istra to rs was not a c tu a lly a problem to any o f the d i s t r i c t s ; t h is l e f t a t o t a l o f th ir ty -fo u r item s th a t had crea ted problem s, and t h ir t y - f iv e th a t had n o t. The th ir ty -fo u r "problem -causing" item s com prised p r o h ib itiv e and mandatory s e c tio n s from the Education Code as w e ll as mandatory s e c tio n s from the A d m in istrative Code, T it le 5—Education. The fin d in g s concerning s p e c if ic le g a l requirem ents which caused problems were analyzed according to the fo llo w in g h ea d in g s: 1. Legal requirem ents th a t caused problems: a . From the Education Code: (1) P r o h ib itiv e (2) Mandatory b . From the A d m in istrative Code, T itle 5 -- E ducation: (1) Mandatory 2 . S ectio n s th a t did not cause problem s. TABLE 4 LEGAL REQUIREMENTS CHOSEN BY JURY AS POSSIBLE SOURCES OF PROBLEMS TO SCHOOL DISTRICTS D i s t r i c t s to m -t 00 r-t to m m in in f" r * » E d u c a tio n Code S e c tio n s o v O r- ■ O ' o 1 0 r> n O to r > » o c m H C M to O' o C M o m o o o m V O C M 0 0 o \ o» O' |H r M oo r* r* r > » r* oo o o C M T i t l e V S e c tio n s r» a \ CM O SOUTHERN CALIFORNIA: E lem en tary H igh School U n ifie d Sm all X X Medium X X X L arge X X X Sm all X X X X X X X Medium X X X L arge X X X X Sm all X X X X X X X X X X Medium X X X X X X X X X X X L arge X X X X X X X X X X X X CENTRAL CALIFORNIA: E lem en tary H igh School Sm all Medium L arge Small Medium L arge x x x X X X X X X X X X X X X Elementary Sm all Medium L arge H igh School Sm all Medium L arge U n ifie d Sm all Medium L arge NORTHERN CALIFORNIA: E lem en tary Sm all Medium L arge High School Sm all Medium L arge U n ifie d Small Medium L arge x x X X X X X X X X X X X X X 216 217 TABLE 5 LEGAL REQUIREMENTS IDENTIFIED BY ADMINISTRATORS AS HAVING CAUSED PROBLEMS TO THE DISTRICTS E d u c a tio n Code S e c tio n s T i t l e V COIOv0 r-HCM'-<C>\ 0 tO?-4 CM >d‘ r-t o o o r H i n o i n i n o m t n m • rw rt-B C M N C M C M C ^ g O O ^ s r - < r < d - CM u i b L n c t s i n m i n m m a o o o Q O o o o o a o c o o SOUTHERN CALIFORNIA: E lem en tary Sm all x Medium L arge x x H igh S chool Sm all x Medium x x x x L arge x x x x U n ifie d Sm all x x Medium x L arge x CENTRAL CALIFORNIA: E lem en tary S m all x Medium x L arge x x x x x H igh S chool Sm all ' Medium L arge x x x x x U n ifie d Sm all Medium x x L arge x x NORTHERN CALIFORNIA: E lem en tary Sm all 218 TABLE 5 (continued) LEGAL REQUIREMENTS IDENTIFIED BY ADMINISTRATORS AS HAVING CAUSED PROBLEMS TO THE DISTRICTS E d u c a tio n Code S e c tio n s T i t l e V cnm^OT-*cMrHcovoin«-tc>j'd' i-h Districts o o o i - t mo mmo mmm U lSLriC tB C M C M C M C M O N O O O tH ^ sJ - sJ c m i n m m m m o o Q o o o o o o o o o o o o ____________________________________________________________________________ -__ md ____ NORTHERN CALIFORNIA (c o n tin u e d ) E lem en tary (c o n tin u e d ) Medium L arg e x x x H igh S chool Sm all Medium x x x x x L arg e x x x U n ifie d S m all x x x x x Medium x x x x x x x L arge x x x N o te: O nly th o s e Code re q u ire m e n ts r e p o r te d a s problem s e x p e rie n c e d by two o r m ore d i s t r i c t s a r e in c lu d e d in t h i s t a b u l a t i o n . 219 S p e c ific Code S ectio n s That Caused Problems The data concerning each Code s e c tio n th at had caused problems for sch o o l d i s t r i c t s were c l a s s i f i e d and are h erew ith p resen ted according to : (1) s e c tio n number and c u r r ic u la r con ten t o f the requirem ent; (2) whether the s e c tio n was chosen by the jury as a p o s s ib le source o f d i f f i c u l t y to sch o o l d i s t r i c t s ; (3) the ty p es o f sch o o l d i s t r i c t s to which the s e c tio n a p p lie s ; (4) the number and percen tages o f d i s t r i c t s which rep orted the s e c tio n to be a problem to them; (5) the reasons why the s e c tio n was con sid ered to be a problem; and (6) the su g g estio n s o ffe r e d by in te rv ie w ee s concerning p o s s ib le s o lu tio n s to the problem s. The numbers and p ercen tages o f d i s t r i c t s which rep orted th a t they had encountered problems in con n ection w ith each s e c tio n o f the Code were ta b u la ted according to geographic a re a , type o f d i s t r i c t , and s iz e o f d i s t r i c t , and are summarized in Table 7, Appendix G. P ro h ib itiv e S ectio n s o f th e E ducation Code D iscrim in a tio n in in s tr u c tio n or en terta in m en ts. This s e c t io n , S e ctio n 8451 o f the Education Code, was not chosen by the ju r y , but a p p lied to a l l sc h o o l d i s t r i c t s . I t re a d s : 220 S e c tio n 8451. In str u c tio n or E ntertainm ents R e fle c tin g upon C itize n s Because o f Race, C o lo r, or Creed No tea ch er in g iv in g in s tr u c tio n , nor e n te r tainm ents perm itted in or about any sc h o o l, s h a ll r e f l e c t in any way upon c it iz e n s o f the U nited S ta te s because o f th e ir r a c e , c o lo r , or creed . Three o f the tw enty-seven d is t r i c t s in v e s tig a te d , or 1 1 .1 per c e n t, reported t h is s e c tio n to be a problem to them* I t presen ted a g rea ter problem to sm all d is t r i c t s than to oth ers (see Table 7, Appendix G). The persons in terview ed in the three d is t r i c t s c it e d the fo llo w in g reasons why the requirem ent had pre sen ted problems to them: (1) There was a q u estio n as to whether Christmas programs were in v io la t io n o f the s e c t io n . (2) The p lace o f Jew ish ch ild ren in r e la tio n to Christmas programs posed a problem, (3) Problems had a r ise n concerning the a ttitu d e o f colored people toward tea ch in g about sla v e r y . A su g g estio n o ffe r e d by those in terview ed fo r so lv in g the problem was th a t the s e c tio n should be c l a r i f ie d le g a lly . D iscrim in a tio n in means o f in s tr u c tio n . The fo llo w in g s e c tio n was not chosen by the ju r y . I t a p p lied to a l l sch o o l d i s t r i c t s . 221 S ec tio n 8452. Means o f In str u c tio n R e fle c tin g upon C itiz e n s Because o f Race, C olor, or Creed No tex tb o o k , c h a r t, or oth er means o f in s tr u c tio n adopted by th e S ta te , county, c i t y , or c it y and county boards o f ed u cation fo r use in the p u b lic sch o o ls s h a ll co n ta in any m atter r e f le c t in g upon c it iz e n s o f the U nited S ta te s because o f th e ir r a c e , c o lo r , or creed . In Table 7, Appendix G, i t may be noted th a t two o f the tw enty-seven d i s t r i c t s in v e s tig a te d , or 7 .4 per c e n t, reported t h is s e c tio n to be a problem to them. Persons in terv iew ed in the two d i s t r ic t s who c it e d the s e c tio n as having cr ea ted a problem gave the fo llo w in g reasons fo r the d if f ic u lt y : (1) Problems had a r ise n over books th a t showed no co lo red or oth er m in ority groups. (2) Some Jew ish parents had com plained about c e r ta in so n g s, e s p e c ia lly a t Christmas tim e. No su g g estio n s for the s o lu tio n o f the problems were o ffe r e d by th ose in terv iew ed . Propaganda and s o l i c i t a t i o n o f fun ds. S ectio n 8454 a p p lied to a l l sch o o l d i s t r i c t s . I t was not s e le c te d by the jury as a probable source o f d i f f i c u l t y to the d i s t r i c t s . The s e c tio n s t a t e s : S e c tio n 8454. Propaganda and S o lic it a t io n o f Funds. (a) No b u l l e t i n , c i r c u l a r , o r o th e r p u b lic a tio n o f any c h a ra c te r whose purpose i s to sp read propaganda j or to fo s te r membership in or su b sc r ip tio n s to th e funds o f any o rg a n iza tio n not d ir e c t ly under the c o n tr o l o f the sch o o l a u th o r it ie s , or to be used as th e b a s is o f study or r e c it a t io n or to su p p le ment the reg u la r sch o o l stu d ie s s h a ll be d i s t r i buted or su ffe r e d to be d is tr ib u te d or shown to the p u p ils o f any p u b lic sc h o o l, on the sc h o o l prem ises during sch o o l hours or w ith in one hour b efore th e time o f opening or w ith in one hour a f t e r the tim e o f c lo s in g o f the sc h o o l. (b) No p u p ils o f the p u b lic sch o o l s h a ll be s o l i c i t e d by tea ch ers or o th ers to su b scrib e to the funds o f or work fo r , any o rg a n iza tio n not d ir e c tly under th e co n tro l o f the sch o o l a u th o r it ie s . (c) No in str u c tio n s h a ll be given through le c tu r e s or o th er means, u n le ss the m a te r ia l con tained in the b u lle t in , c ir c u la r , or p u b lic a tio n , or the purpose o f the su b sc r ip tio n or in s tr u c tio n has been approved by the S ta te Board o f E ducation, or by the county board o f ed u ca tio n , or by the governing board o f the sch o o l d i s t r i c t in which the sc h o o l is s itu a te d . No p r o h ib itio n o f t h is s e c tio n s h a ll apply to b u lle t in s or c ir c u la r s concerning th e m eetings o f t h e ir o rg a n iza tio n s issu e d by any p aren t- tea ch er a s s o c ia tio n or by any o rg a n iza tio n o f parents formed fo r the purpose o f co -o p era tin g w ith the sch o o l a u th o r itie s in improving sch o o l co n d itio n s in the d i s t r i c t . I t w i l l be seen in the data p resen ted in Table 7 Appendix G, th a t th ree o f the tw enty-seven d i s t r i c t s in v e s tig a te d , or 11.1 per c e n t, rep orted th e s e c tio n to p resen t a problem. I t was a problem only in Southern C a lifo r n ia and p rim arily in la rg e d i s t r i c t s . In terview ees in the three d is t r i c t s which c it e d th e s e c tio n as p resen tin g a problem gave th e fo llo w in g 223 reason why the d if f ic u lt y had been created : Pressure had been ap p lied on sch ool d is t r ic t s by groups seek ing to s o l i c i t funds from stu d en ts. A su ggestion o ffe re d by those in terv iew ed fo r s o lu tio n of th e problem was th a t the s e c tio n be c l a r i f i e d and stre n g th e n e d . Mandatory S ections from the E ducation Code Language o f in s tr u c tio n . S ectio n 71 o f the Educa tio n Code d ecla res that a l l in str u c tio n in a l l sch o o ls s h a ll be taught in the E nglish language. This s e c tio n was not chosen by the ju r y . I t a p p lied to a l l sch ool d i s t r i c t s . In the data summarized in Table 7, Appendix G, i t may be seen th at one o f the tw enty-seven d is t r ic t s surveyed reported the s e c tio n to have crea ted a problem. The reason given was th a t the requirem ent was a problem in sch o o ls where a very high proportion o f the stu d en ts were Mexicans who did n ot speak E n glish . The fo llo w in g su g g estio n was o ffe r e d for so lv in g the d if f ic u lt y : Schools should be allow ed to conduct c la s s e s in another language at le a s t u n t il non-E nglish speaking ch ild ren are ad ju sted to the sch o o l s itu a tio n . 224 L incoln and Washington birthday e x e r c is e s . S ectio n 5203 was not chosen by the jury as a p o s s ib le source o f problems to sch o o l d i s t r i c t s . I t a p p lied to a l l sch o o l d i s t r i c t s . The se c tio n s t a te s : S ectio n 5203. L incoln and Washington Birthday E x ercises A ll p u b lic sch o o ls and ed u ca tio n a l i n s t i t u tio n s throughout the S ta te s h a ll, on the sch ool day preceding February 12th and February 22d, hold the customary e x e r c is e s in memory o f Abraham L incoln and George W ashington, r e s p e c tiv e ly . As i s ex h ib ited in Table 7, Appendix G, f iv e o f the tw enty-seven ad m in istrators in terview ed reported th a t th is law had caused a problem to the d i s t r i c t . Problems were experienced more o fte n in h igh sch o o l d i s t r i c t s in Southern and Northern C a lifo rn ia than in any o th e r s. In terview ees in th ese fiv e d i s t r i c t s gave the fo llo w in g reasons for the problem: (1) This law had the e f f e c t o f p la cin g the h o lid a y , rath er than the reason fo r the h o lid a y , uppermost in the minds o f stu d en ts. (2) The in te r p r e ta tio n o f what c o n stitu te d "customary e x e r c is e s ," e s p e c ia lly in high sc h o o ls , created a problem in some d i s t r i c t s . The r e s u lt was haphazard and in c id e n ta l in str u c tio n which lacked c o n siste n c y . The su g g estio n was o ffe r e d by those in terv iew ed 225 th a t i t would be b e tte r to elim in a te the h o lid a y s and r e a lly emphasize the co n trib u tio n s o f th ese two great men on those days. C onservation, B ird, and Arbor Day. S ectio n 5205 o f the Education Code was not chosen by the ju ry . I t a p p lied to a l l sch ool d i s t r i c t s . The s e c tio n s ta te s : S ectio n 5205. C onservation, B ird, and Arbor Day March 7th o f each y ea r, the anniversary o f the birthday o f Luther Burbank, i s s e t apart and d e sig nated C onservation, B ird, and Arbor Day. A ll p u b lic sch o o ls and ed u cation al in s t itu t io n s s h a ll observe C onservation, B ird, and Arbor Day not as a h o lid a y , but by in clu d in g in the sch ool work o f the day, su ita b le e x e r c ise s having fo r th e ir o b ject in s tr u c tio n as to the economic value o f b ird s and t r e e s , and the promotion o f a s p ir it o f p ro te ctio n toward them, and as to the economic valu e o f n a tu ra l reso u rces, and the d e s ir a b ilit y o f th e ir co n serv a tio n . In Table 7, Appendix G, i t is seen th at eig h t o f the tw enty-seven d is t r ic t s in v e s tig a te d , or 29.6 per c e n t, reported th is s e c tio n to have crea ted problems fo r them. Northern C a lifo rn ia u n ifie d d is t r i c t s reported the problem most o fte n . Those in terview ed in the eig h t d i s t r i c t s gave the fo llo w in g reasons why the requirem ent had been a problem to them: (1) I t was thought that the se c tio n was superfluous and unnecessary because good 226 tea ch in g in v o lv ed the elem ents o f th e s e c tio n anyway. (2) Two in te rv ie w ee s la b ele d the s e c tio n " r id ic u lo u s." The su g g e stio n o f fe re d by th o se in te rv ie w e d fo r s o lu tio n of the problem was to "E lim inate th e s e c tio n from the Code." Susan B. Anthony Day. S e c tio n 5206 o f the Educa tio n Code was not chosen by the ju ry as a probable source o f d if f ic u lt y to d i s t r i c t s . I t a p p lied to a l l sch o o l d i s t r i c t s . The s e c tio n s t a te s : S e c tio n 5206. Susan B. Anthony Day February 15th o f each y ea r , the an n iversary o f the b irthd ay o f Susan B. Anthony, i s d esig n a ted and s e t apart as Susan B. Anthony Day. A ll p u b lic sch o o ls and ed u ca tio n a l i n s t i t u tio n s s h a ll observe t h is day w ith s u ita b le ex er c i s e s , d ir e c tin g a tte n tio n to the development o f the p o l i t i c a l and economic s ta tu s o f women in the U nited S ta te s , through the e f f o r t s o f Susan B. Anthony. As i s seen in Table 7, Appendix G, n in e d i s t r i c t s o f the tw en ty-seven in v e s tig a te d , or 33.3 per c e n t, r e ported t h is s e c tio n to be a problem. Large u n ifie d d is t r i c t s c it e d i t most freq u en tly . The persons in terv iew ed in th ese d i s t r i c t s gave the fo llo w in g reason s fo r the fa c t th a t i t was a problem to them: (1) I t was con sid ered u n n ecessary. (2) I t was b e lie v e d th a t com pliance w ith the p ro v isio n s o f the s e c tio n was seldom accom plished. (3) What com pliance th ere was was la ck in g in c o n siste n c y . A s in g le su g g estio n s was o ffe r e d fo r so lu tio n o f the p rob lem --th at the s e c tio n be elim in a ted . D aily p a t r io t ic e x e r c is e s . S ectio n 5211 o f the E ducation Code was not chosen by the ju r y . I t a p p lied to a l l sch o o l d i s t r i c t s . The r e g u la tio n s ta te s : S e c tio n 5211. D aily Performance o f P a tr io tic E x erc ises in P u b lic Schools In every p u b lic elem entary sch o o l each day during th e sch o o l year a t the b eginning o f the f i r s t r e g u la r ly schedu led c la s s or a c t iv it y period a t which th e m ajority o f the p u p ils o f th e sch ool norm ally b egin the sch o o l day, th ere s h a ll be conducted ap propriate p a t r io t ic e x e r c is e s . The g iv in g o f the pledge o f a lle g ia n c e to the F lag o f the U nited S ta te s o f America s h a ll s a t is f y the requirem ents o f t h is s e c t io n . In every p u b lic secondary sc h o o l there s h a ll be conducted d a ily appropriate p a tr io tic e x e r c is e s . The g iv in g o f the pledge o f a lle g ia n c e to the Flag o f the U nited S ta te s o f America s h a ll s a t is f y such requirem ent. Such p a t r io t ic e x e r c is e s for secondary sch o o ls s h a ll be conducted in accord ance w ith th e r e g u la tio n s which s h a ll be adopted by the governing board o f the d i s t r i c t m aintain in g the secondary sc h o o l. As i s e x h ib ite d in Table 7, Appendix G, f iv e d is t r i c t s o f the tw en ty-seven in v e s tig a te d , or 18.5 per c e n t, rep orted th a t t h is s e c tio n had p resen ted a problem. Northern C a lifo rn ia h igh sc h o o ls in la rg e d i s t r ic t s 228 reported the problem most o fte n ; C entral C a lifo rn ia e l e mentary and sm all d i s t r i c t s reported i t le a s t . The per sons in terview ed in the fiv e d is t r ic t s gave the fo llo w in g reason for th e fa c t th a t i t had created a problem for them: P a tr io tic e x e r c ise s were d i f f i c u l t to schedule in h igh sc h o o ls. No su g g estio n s were made as to how to so lv e the problem. The fiv e d is t r ic t s had attem pted to so lv e i t in a v a r ie ty o f ways, but none f e l t that they had removed th e d i f f ic u l t y . C ontinuation c la s s e s fo r m inors. S ectio n 5952 was not one o f the le g a l requirem ents m entioned by the ju r y . It a p p lied to high sc h o o l and u n ifie d sch o o l d is t r i c t s . The se c tio n s ta te s : S ectio n 5952. Establishm ent and Maintenance o f C ontinuation C lasses fo r Minors The governing board o f each h igh school d i s t r i c t s h a ll e s ta b lis h and m aintain s p e c ia l con tin u ation education c la s s e s whenever there are any minors r e sid in g w ith in the high school d i s t r i c t who are su b ject to compulsory co n tin u a tio n education; provided, that i f there are le s s than 50 such m inors, they may be e n r o lle d in reg u la r high sch ool c la s s e s or in approved correspondence co u rses, hom e-study, or such other ed u cation al program as the governing board i s au th orized to , and may provide; and provided fu r th e r , th a t minors liv in g more than two m iles from th e schoolhouse by the n ea rest tr a v e le d road may be exempted by the governing board o f sa id d i s t r i c t . As is d isp la y ed in Table 7, Appendix G, s i x o f the tw enty-seven d is t r i c t s in v e s tig a te d , or 2 2 .2 per c e n t, reported th is se c tio n to be a problem to them. I t was more o f a problem in Northern C a lifo rn ia than in oth er r e g io n s. The persons in terview ed in th ese s ix d is t r ic t s gave the fo llo w in g reasons for the fa c t th a t the s e c tio n had presented a problem: (1) Scheduling o f co n tin u a tio n c la s s e s was extrem ely d i f f i c u l t . (2) Financing the pro gram was a burden to sch o o l d i s t r i c t s . (3) Without g iv in g s p e c if ic rea so n s, se v e r a l f e l t th a t i t was im p ossib le for th e ir d i s t r i c t to comply w ith the requirem ents o f the s e c tio n . Since th e ir d i s t r ic t s did not comply w ith i t , they th erefo re faced p o ssib le d i f f i c u l t i e s concerning enforcem ent. S uggestions o ffe r e d fo r s o lu tio n o f the problems were: (1) The s ta te should bear the c o s ts o f such pro grams. (2) The s e c tio n should be elim in a ted from the Code. Enforced use o f textbooks and courses o f s tu d y . One o f the most c o n tr o v e r sia l s e c tio n s o f the Education has been S ectio n 7551, which was chosen by the jury as a p o s s ib le source o f d i f f i c u l t y fo r d i s t r i c t s . P ro v isio n s o f the s e c tio n apply to a l l sc h o o l d i s t r i c t s . I t s t a t e s : S ectio n 7551. Duty o f Governing Board to Enforce Course o f Study and Use o f Textbooks The governing b o ard o f any school d i s t r i c t s h a l l .enforce in th e schools th e course o f study and the use o f textbooks p re s c rib e d and adopted by the p ro p er a u th o r ity . As i s seen in Table 7, Appendix G, nine o f the tw en ty-seven d i s t r i c t s in v e s tig a te d , or 3 3 .3 per c e n t, rep orted th a t t h is s e c tio n had crea ted a problem fo r them. U n ifie d d i s t r i c t s and th ose in Southern and Northern C a lifo r n ia encountered the problem most fr e q u e n tly . The persons in terv iew ed in th ese n in e d i s t r ic t s gave the f o l low ing reasons fo r the d i f f ic u lt y : (1) The use o f s t a te te x t s was hard to en fo r c e . (2) The s t a te te x t s were o fte n outmoded b efore the end o f the adoption p erio d , e . g . , m athem atics te x t s in re ce n t y e a r s. (3) The s t a te te x t s were o fte n not con sid ered to be the b e st t e x t s . (4) P roviding supplem entary t e x t s to overcome the d e f i c ie n c ie s o f s t a t e te x t s req u ired lo c a l money. (5) S ta te adoptions did n ot a llo w for f l e x i b i l i t y in the ed u ca tio n a l program. (6) S ta te adoptions d estro y ed lo c a l c o n tr o l. (7) There was co n fu sio n regarding which were " b a sic” te x ts and which were "supplem entary.” (8) Members o f 231 governing boards m ight try to en force the p ro v isio n s o f th e s e c tio n p e rso n a lly in ste a d o f through the p r o fe s s io n a l s t a f f . The fo llo w in g su g g estio n s were o ffe r e d by those in te rv ie w ed , as p o s s ib le so lu tio n s to the problems: (1) The s e c tio n should be d e le te d from the Code. (2) Textbook s e le c t io n procedures should be changed. (3) D is t r ic t s sh ou ld be allow ed to s e le c t t e x t s from m u ltip le l i s t s . P u b lic in sp e c tio n o f cou rses o f stu d y . S ectio n 7552 was n ot s e le c te d by the jury as a p o ssib le source o f d i f f i c u l t y to d i s t r i c t s . This s e c tio n a p p lie s to a l l sc h o o l d i s t r i c t s . I t s ta te s : S e c tio n 7552. Duty o f C ity Board to Prepare and F ile Courses o f Study for P u b lic In sp ectio n Each c it y board o f ed u cation s h a ll prepare an nu ally and keep on f i l e for p u b lic in sp e c tio n the cou rses o f study p rescrib ed fo r the k in d er g a rten , elem en tary, and h ig h sc h o o ls o f th e c it y sch o o l d i s t r i c t under i t s j u r is d ic t io n . One d i s t r i c t rep orted t h is s e c tio n to be a problem and c ite d th e fo llo w in g reason for th e fa c t th a t i t was a problem: I t was d i f f i c u l t fo r a d i s t r i c t w ith a sm all s t a f f to comply w ith the s e c tio n "annually. 1 1 No su g g e stio n was o ffe r e d for th e s o lu tio n o f the | problem. 232 R e s p o n s ib ility o f county boards fo r cou rses of in s t r u c t io n . S e ctio n 7553 was s e le c te d by the ju ry as a p o s s ib le source o f d i f f i c u l t y to d i s t r i c t s . This s e c tio n a p p lie s to a l l sch o o l d i s t r i c t s , and re q u ir es: S e c tio n 7553. Duty o f County Boards to P re s c rib e and Enforce Course o f Study County boards o f education s h a ll, excep t in c i t i e s having a c i t y board o f ed u ca tio n , pre sc r ib e and en force in the p u b lic sc h o o ls a course o f stu d y. As i s e x h ib ite d in Table 7, Appendix G, th ree o f the tw en ty-seven d i s t r i c t s in v e s tig a te d , or 11.1 per c e n t, rep orted th a t the s e c tio n had crea ted a problem fo r them. The persons in terv iew ed in th ese th ree d i s t r i c t s gave the fo llo w in g reasons fo r the problem: (1) County boards had not done a s a t is f a c t o r y jo b . (2) The s e c tio n dim in ish ed the opportunity fo r f l e x i b i l i t y and exp erim en tation in the ed u ca tio n a l program o f the lo c a l d i s t r i c t . A p o s s ib le s o lu tio n to the problem was o ffe r e d by those in terview ed : "There must be competent p r o fe s s io n a l le a d ersh ip a t the county le v e l." Years o f in str u c tio n fo r elem entary sc h o o ls ,. Sec tio n 7601 was chosen by the jury as a p o s s ib le source o f d if f i c u l t y fo r elem entary d i s t r i c t s . I t a p p lie s to 233 elementary and u n ifie d d i s t r i c t s . The se c tio n s ta te s : S e ctio n 7601. Years o f In str u c tio n fo r Elementary Schools Except as oth erw ise provid ed , the cou rses o f study fo r the day elem entary sch o o ls in d i s t r ic t s m aintain in g ju n io r h igh sch o o ls s h a ll embrace s ix years o f in s tr u c tio n , and in d i s t r i c t s in which ju n io r h igh sch o o ls are not m aintain ed , the cou rses o f stud y s h a ll embrace e ig h t years o f in s tr u c tio n . Courses s h a ll a l l o t s i x or e ig h t y e a r s, resp ec t i v e l y , fo r in s tr u c tio n in su b je c ts required to be taught in such sch o o ls and may a l l o t not more than two years fo r k in d ergarten in s tr u c tio n . The course o f study fo r any day elem entary sch o o l lo c a te d in an elem entary sch o o l d i s t r i c t s it u a tio n in a h igh sc h o o l d i s t r i c t m aintaining one or more ju n io r high s c h o o ls , where the d is t r i c t s are governed by boards o f id e n tic a l per so n n e l, s h ^ ll embrace s i x years or e ig h t years at the d is c r e tio n o f th e governing board o f the elem entary sc h o o l d i s t r i c t . The cou rses o f study fo r the day elem entary sch o o ls o f a u n ifie d sc h o o l d i s t r i c t m aintain in g one or more ju n io r h igh sch o o ls s h a ll embrace s ix y ea rs or e ig h t y e a r s , or some o f the elem en tary sch o o ls may be m aintained fo r s ix years and some may be m aintained fo r e ig h t y ea r s. The cou rses o f study fo r any day elem entary sch ool lo c a te d in an elem entary sch o o l d i s t r i c t s i t u ated in a union or j o in t union h igh sch o o l d i s t r i c t m ain tain in g one or more ju n io r h igh sch o o ls s h a ll be s i x years' or e ig h t y ea rs at th e d is c r e tio n o f the governing board o f the elem entary sch o o l d is t r i c t i f such h igh sch o o l d i s t r i c t did not m aintain a ju n io r high sc h o o l p r io r to Ju ly 1, 1943, and i f such elem entary sc h o o l i s lo c a te d 40 m iles or more by the n e a r e st tr a v e le d road from any ju n io r high sc h o o l m aintained by such h igh sc h o o l d is t r i c t . In a l l oth er c a s e s , the cou rses o f study o f 234 any elementary school s h a ll embrace eigh t years. Each day elem entary sch o o l may a l l o t not more than two years fo r kindergarten in s tr u c tio n . In the summarization o f the data e x h ib ite d in Table 7 (see Appendix G ) i t i s seen that one o f the tw enty-seven d is t r ic t s surveyed, or 3.7 per c e n t, rep orted th is se c tio n o f the Education Code to have caused a prob lem to the d i s t r i c t . In terview ees in th is d is t r ic t gave the fo llo w in g reason for the d if f ic u lt y : The s e c tio n made interm ediate sch o o ls (grades seven and e ig h t) ambigu ous and hard to f i t in to an o v e r -a ll ed u ca tio n a l program. Those in terview ed made the su g g estio n th a t the problem cou ld be so lv ed i f the s e c tio n were c l a r if ie d . The elem entary course o f stu d y . S ectio n 7604 was mentioned by the jury as a p o ssib le source o f d if f ic u lt y to d i s t r i c t s . I ts p ro v isio n s apply to elem entary and u n ifie d sch o o l d is t r ic t s : S ectio n 7604. Course o f Study in Elementary Schools The course o f study in the elem entary sch o o ls s h a ll in clu d e in s tr u c tio n in the fo llo w in g pre scrib ed branches in the se v e r a l grades in which each i s required pursuant to t h is a r t ic le (com mencing a t S ectio n 7601): - 235 (a) Beginning in grade 1, and con tinu in g through grade 6 or 8 , as the case may b e , in str u c tio n s h a ll be given in a l l o f the fo llo w in g : (1) Reading. (2) W riting. (3) S p e llin g . (4) A rith m etic, w ith emphasis on b a sic p r in c i p le s and tech n iq u es. (b) Beginning not la t e r than grade 4 and con tin u ing through grade 6 or 8 , as the case may be, in s tr u c tio n s h a ll be given in a l l o f the fo llo w in g : (1) E n g lish as a separate su b ject w ith emphasis on thoroughness, and as a d is c ip lin e separate from the su b ject o f s o c ia l s tu d ie s . (2) Geography. (3) H isto ry , in clu d in g the ea rly h isto r y o f C a lifo rn ia and the h isto r y o f the U nited S t a t e s . (c ) Beginning not la t e r than grade 6 , and co n tin u in g through grade 6 or 8 , as the case may be, in s tr u c tio n s h a ll be given in a l l o f the fo llo w in g : (1) C iv ic s . (2) A fo reig n language or languages. (3) N atural s c ie n c e . (4) H ealth. (d) The course o f study in the elem entary sch o o ls s h a ll in clu d e in s tr u c tio n , in the grade or grades pre sc rib ed by the county board o f education o f the c i t y , county, or c i t y and county, in a l l o f the fo llo w in g : (1) A rt. (2) M usic. (e) Such oth er s tu d ie s , not to exceed th ree, as may be p rescrib ed by the board o f education o f the c i t y , county, or c it y and county. N otw ithstanding o th er p ro v isio n s o f th is s e c tio n to the con trary, a fo reig n language or languages may but is not requ ired to be in clu d ed in the course o f study in th e elem entary sch o o ls u n t il June 30, 1965, and on and a f te r July 1, 1965, such course o f study s h a ll in clu d e a fo reig n language or languages 236 beginning not la te r than grade 6 and con tin u in g through grade 6 or 8 , as the case may b e. The L e g isla tu re here d ecla res that i t is the p o lic y o f the S ta te to fo s te r and encourage fo reig n language programs in the elem entary and secondary sch o o ls by which the ch ild ren o f th is S ta te lea rn to speak and w rite fo reig n languages w ith the same f a c i l i t y w ith which ch ild ren educated in sch o o ls of oth er co u n tries speak and read fo reig n languages in order th a t the ch ild ren o f th is S ta te be ade q u ately prepared to undertake th e ir d u tie s as American c it iz e n s in a world in which the a b i l i t y to communicate w ith peoples o f other c o u n tries in t h e ir own tongue i s o f e v e r-in cre a sin g im portance. R eference to the data summarized in Table 7 o f Appendix G shows th at seven teen o f the tw enty-seven d is t r ic t s surveyed, or 6 2 .9 per c e n t, reported that t h is s e c tio n o f the Code presented numerous problems to d is t r i c t s . Medium-sized elem entary and u n ifie d d is t r ic t s were a ffe c te d most freq u en tly . The persons in terview ed in the seven teen d is t r ic t s gave the fo llo w in g reasons for the problems which developed: 1. The s ta te did not provide m a teria ls fo r a l l re quired su b jec ts and thereby imposed a fin a n c ia l burden on the d i s t r i c t s . 2 . I t was b e lie v e d u n r e a lis tic and ed u ca tio n a lly unsound to d iv id e h isto r y and geography in to separate su b je c ts . Such d iv is io n seemed to co n tra d ict the p h ilo so - phy o f the new s ta te framework fo r t h e s o c i a l s tu d ie s . 237 3. I t was f e l t th a t many o f the su b je c ts must s t a r t e a r lie r than th e grade le v e l d esign ated to be e f f e c t iv e . 4 . The fo r e ig n language requirem ent was c it e d as ’V agu e.” Other reasons given fo r problems crea ted by the fo reig n language requirem ent were: a . The p ro v isio n s th a t i t in v o lv e a l l ch ild ren was c it e d by fiv e d i s t r i c t s . b . The d i f f i c u l t y encountered in fin d in g q u a li fie d p erson n el was c it e d by e ig h t d i s t r i c t s . c . The c o s t o f the program was c ite d by fou r. d. The d i f f i c u l t y in sch ed u lin g was c i t e d by two d i s t r i c t s . e . The co n fu sio n and lack o f a r t ic u la t io n be tween the elem entary sc h o o l and the ju n io r high sc h o o l was c ite d by three d i s t r i c t s . 5. The meaning o f " c iv ic s ” was u n clea r. 6. The d iv is io n o f E n g lish , h is to r y , and geography in to sep arate su b je c ts req u ired changes in the form o f rep orts to p aren ts. 7. The meaning o f the phrase "such oth er su b je c ts not to exceed three" was u n c lea r . 8. S u b jec t m a tte r req u irem en ts were added to the Code, but none were removed. 9. The s p e c if i c it y o f the s e c tio n dim inished lo c a l c o n tr o l. 10. The d e sig n a tio n o f E n glish as a sep a ra te sub j e c t was con sid ered u n r e a lis t ic and unwise in th e elemen tary sc h o o l. Furthermore, i t was d i f f i c u l t to en fo rce. 11. The meaning o f n a tu ra l sc ie n c e was n o t c le a r . 12. The p ro v isio n s o f the s e c tio n made an ungraded primary or ungraded sch o o l o r g a n iz a tio n a l p a ttern d iffic u lt. 13. There was not enough s t a te fin a n c ia l a id fo r a r t and m usic. A number o f su g g e stio n s were o ffe r e d by in te r v ie w e e s fo r th e s o lu tio n o f the problems: 1. M aterials should be provided by the s t a te fo r a l l req u ired s u b je c ts . 2. H istory and geography should not be sep a ra ted . 3. Grade le v e l d esig n a tio n s fo r s p e c if ic su b je c ts should be elim in a te d . 4 . The fo r e ig n language requirem ent sh ou ld be elim in a ted or be made p erm issiv e. 5 . I f a fo r e ig n language is req u ired , i t should not in v o lv e a l l c h ild r e n , adequate s t a t e fin a n cin g should be made a v a ila b le , and a d d itio n a l tim e should be allow ed to secure tra in ed p erson n el. 6. The meaning o f " c iv ic s ” should be c l a r i f i e d . 7. The meaning o f the p hrase, "such o th er su b je c ts n ot to exceed three,” should be c l a r i f i e d . 8. E n glish should be con sid ered a part o f language a r t s . 9. "Natural sc ien ce " should be changed to " scien ce 10. The e n tir e s e c tio n should be made more gen eral to allow fo r g re a te r lo c a l c o n tr o l and to provide more ad equately for in d iv id u a l d iffe r e n c e s among d i s t r i c t s and p u p ils w ith in d i s t r i c t s . Minimum time requ irem en ts. S ectio n 7605 was chosen by the ju ry as a s e c tio n p o ssib ly d i f f i c u l t to e n fo rce . I t a p p lie s to elem entary and u n ifie d d i s t r i c t s : S ec tio n 7605. Minimum Time Requirements in C ertain Courses A minimum o f 50 per cent o f each sch o o l week s h a ll be devoted to rea d in g , w r itin g , language stu d y, s p e llin g , a r ith m e tic , and c iv ic s in grades one to s i x , in c lu s iv e , and a minimum o f 600 min u tes o f each sc h o o l week s h a ll be devoted to such su b je c ts in grades seven and e ig h t. I t i s seen in the data summarized in Table 7 o f Appendix G th a t s i x o f the tw en ty-seven d i s t r i c t s i n v e s t i gated (2 2 .2 per ce n t) reported t h is s e c tio n to be a source 240 o f problems for them. M edium-sized u n ifie d d is t r ic t s in Southern C a lifo rn ia reported the problems most o fte n . Those in terview ed in the s ix d i s t r i c t s gave the fo llo w in g reasons fo r the d i f f i c u l t i e s : (1) I t was d i f f i c u l t to cover the requirem ents in the time allow ed . (2) The s e c tio n ignored in d iv id u a l d iffe r e n c e s among ch ild re n . (3) F le x i b i lit y was reduced. (4) The se c tio n was not en fo rce a b le . The su g g estio n s was o ffe r e d by th ose in terview ed th a t the problem could p o ssib ly be so lv ed i f the se c tio n were made le s s s p e c if i c . I t should required only "an adequate amount o f tim e." Secondary course o f stu d y . S ectio n 7700 was chosen by the jury as a p o ssib le source o f d if f ic u lt y . The se c tio n a p p lie s to a l l sch o o l d i s t r i c t s , and s t a te s : S ectio n 7700. Course o f Study fo r Grades 7 to 12. in c lu s iv e The course o f study fo r grades 7 and 8 o f each elem entary sc h o o l, and fo r each ju n io r high sc h o o l, high sc h o o l, or grades 11 and 12 o f a fou r-year ju n io r c o lle g e s h a ll be prepared under the d ir e c tio n o f the governing board having co n tro l th ereo f and s h a ll be su b ject to the approval o f the S ta te Board o f Education. The course o f study s h a ll meet the requirem ents o f t h is s e c tio n . In ad di tio n to cou rses otherw ise required by law, the course o f study s h a ll requ ire o f a l l p u p ils in grades 7 to 12, in c lu s iv e : (a) Five years o f in str u c tio n in the use o f E n g lish , designed to teach the student to read ra p id ly and p e r c e p tiv e ly , to w rite c le a r ly and c o r r e c tly , and to p resen t id eas o r a lly . Such in s tr u c tio n s h a ll in clu d e the p r in c ip le s o f grammar and punctuation as instrum ents o f reading and w r itin g . Also a core o f reading designed to fa m ilia r iz e the student w ith the v a r ie ty o f lit e r a r y forms and to improve h is reading a b ilit y s h a ll be taugh t. (b) Five years o f h isto r y commencing w ith grade 7, to include a l l o f the fo llo w in g : (1) Twenty-sem ester p eriods o f American h isto r y em phasizing American i n s t it u tio n s and id e a ls , and C a lifo rn ia h is to r y . (2) Twenty sem ester p eriods o f world h is to r y , the h isto r y o f Western c i v i l i z a tio n , and world geography. (3) Ten sem ester p eriods o f American government em phasizing p r in c ip le s o f the C o n stitu tio n and the D eclaration o f Independence, and the p r in c ip le s o f s ta te and lo c a l government under the C o n stitu tio n o f t h is S ta te . For purposes o f the h isto r y requirem ents pre sc r ib ed by su b d iv isio n (b ), in the case o f sch o o ls w hich are n ot operated on the b a sis o f sem ester p e r io d s, the time devoted to the r e sp e c tiv e cou rses s h a ll be, as nearly as p r a c tic a b le , the eq u iv a len t o f the required time as measured in terms o f sem ester p erio d s, and the S ta te Board o f Education s h a l l , by r e g u la tio n , p rescrib e the manner in which time' during the sch ool year s h a ll be a l l o ca ted for such purposes in th ose sc h o o ls. As may be seen in Table 7, Appendix G, th ir te e n the tw enty-seven d is t r ic t s surveyed (48.1 per cen t) r e ported th a t t h is se c tio n had caused problem s. Large u n ifie d d is t r ic t s made t h is report most o fte n ; sm all 242 elem entary d i s t r i c t s le a s t o fte n . Those in terview ed in the th ir te e n d i s t r i c t s gave th e fo llo w in g reasons fo r the d if f ic u lt y : (1) Enforcement was con sid ered im p ossib le in n o n -u n ified sch o o l d i s t r i c t s . (2) The e le c t iv e s program was s e r io u s ly hampered. (3) I t was in c r e a s in g ly d i f f i c u l t fo r d i s t r i c t s to provide fo r the non-academ ic stu d en t. The drop-out problem was th e refo re in t e n s if ie d . (4) The f l e x i b i l i t y o f the ed u ca tio n a l program was s e r io u s ly reduced. (5) Local co n tro l o f the ed u ca tio n a l program p was d im inished. (6) Fine a r t s were b ein g forced out o f the program. (7) The requirem ent concerning c iv ic s was u n clea r. (8) There was in s u f f ic ie n t s t a te fin a n c ia l a id fo r the su b jec t m atter requirem ents. (9) A r tic u la tio n w ith elem entary sc h o o ls was made d i f f i c u l t . (10) The requirem ents forced d i s t r i c t s to be str o n g ly c o lle g e o r ie n te d , even though th e ir communities might not b e. Two su g g e stio n s were o ffe r e d by in terv iew ees as p o ssib le so lu tio n s to the problem s: (1) More f l e x i b i l i t y should be allow ed . (2) The s e c tio n should be a gen eral statem ent o f o b je c tiv e s ra th er than s p e c if ic course r e quirem ents . 243 T raining in m orality and c it iz e n s h ip . S ection 7851 was not chosen by the jury as a p o ssib le source o f major d if f ic u lt y to d i s t r i c t s . The se c tio n a p p lies to a l l sc h o o l d i s t r i c t s , and s ta te s : S ectio n 7851. Training o f P up ils in M orality and C itizen sh ip Each teach er s h a ll endeavor to impress upon the minds o f the p u p ils the p r in c ip le s o f m o ra lity , tr u th , j u s t ic e , and p a tr io tism , to teach them to avoid id le n e s s , p ro fa n ity , and fa lseh o o d , to in s tr u c t them in the p r in c ip le s o f a free government, and to tr a in them up to a true comprehension o f the r ig h t s , d u tie s , and d ig n ity o f American c itiz e n s h ip . As is seen in Table 7 o f Appendix G, one o f the d is t r ic t s in v e stig a te d (3 .7 per cen t) reported that t h is s e c tio n had caused a problem. The p ro v isio n was co n sid ered unnecessary because i t was f e l t that a l l teach ers did th is anyway. The su ggestion was made th a t th is s e c tio n be d e le te d from the Code. Manners and m orals; a lc o h o l and n a r c o tic s . S ec tio n 7852 was chosen by the jury as a p o ssib le source o f d i f f i c u lty to d i s t r i c t s . The s e c tio n a p p lie s to a l l sch ool d i s t r i c t s , and s ta te s : S ectio n 7852. In stru ctio n in Manners and M orals; E ffe c ts o f A lcoh ol and N arcotics 244 I n s tr u c tio n s h a ll be given in a l l grades o f school and in a l l c la s s e s during the e n tir e school co u rse, in manners and m orals. I n s tr u c tio n upon the n atu re o f a lc o h o l and n a r c o tic s and t h e i r e f f e c ts upon the human system as determ ined by scien ce s h a ll be included in the curriculum o f a l l elem entary and secondary sch o o ls. The govern ing board o f the d i s t r i c t s h a l l adopt re g u la tio n s sp e c ify in g th e grade o r grades and the course o r courses in which such in s tr u c tio n w ith re s p e c t to alco h o l and n a rc o tic s s h a l l be in clu d ed . I t i s seen in the data summarized in Table 7 o f Appendix G that elev en o f the tw enty-seven d i s t r i c t s in v e s tig a te d , or 4 0 .7 per c e n t, reported th a t enforcem ent o f the p ro v isio n s o f th is s e c tio n had caused problems to the d i s t r i c t s . Small d i s t r i c t s , u n ifie d d i s t r i c t s , and those in Southern C a lifo rn ia were most a ffe c te d by the s e c tio n . Persons in terview ed in the elev en d is t r ic t s gave the fo llo w in g reasons for d i f f i c u l t i e s encountered: (1) Few appropriate m a teria ls on a lc o h o l and n a r c o tic s are a v a ila b le , e s p e c ia lly for elem entary sc h o o ls, (2) Enforcement was im p ossib le when in s tr u c tio n on a lc o h o l and n a r c o tic s was given in h ea lth c la s s e s from which some stu d en ts were excused fo r r e lig io u s rea so n s. (3) I t was f e l t th at many o f the problems caused by a lc o h o l and nar c o tic s were em otional and not lik e ly to be so lv e d by a ; course o f study. (4) Scheduling was d i f f i c u l t . (5) The L q u estion o f whose p oin t o f view toward a lc o h o l and 245 n a r c o tic s was the " rig h t” one created problem s. (6) There was a lack o f appropriate courses o f stu d y. (7) Whether to in clu d e in s tr u c tio n complying w ith the se c tio n in an e x is tin g course or to make a separate course out o f i t was a problem. (8) The in c lu sio n o f manners and morals and a lc o h o l and n a r c o tic s in the same s e c tio n was f e l t to be con fusing and in ap p rop riate. (9) The se c tio n had been used as a ’Whip" by the p u b lic in one sch ool d i s t r i c t . S uggestions o ffe r e d by those in terview ed for the s o lu tio n o f the problems included the fo llo w in g : (1) O b jectives o f in s tr u c tio n in a lc o h o l and n a r c o tic s should be made c le a r . (2) The in str u c tio n covered by the se c tio n should be conducted in c id e n ta lly in con n ection w ith oth er co u rses. (3) The requirem ent should be made p erm issive. (4) Manners and m orals, and a lc o h o l and n a r c o tic s should be sep arated . H istory and government. S ectio n 7901 was s e le c te d by the jury as a p o ssib le source o f d if f ic u lt y to d istr ic ts* The s e c tio n a p p lie s to a l l d i s t r i c t s , and s ta te s : S ectio n 7901. Courses in H istory and Government In a l l p u b lic and p riv a te sch o o ls lo ca ted w ith in the S ta te , there s h a ll be given regu lar courses o f in s tr u c tio n in the C o n stitu tio n o f the U nited S ta te s , and in American h is to r y , in - , 246 elu d in g the study o f American in s t it u t io n s and id e a ls . In a l l p u b lic and p r iv a te sc h o o ls lo c a te d w ith in the S ta te , there s h a ll be given in s tr u c tio n in the C o n stitu tio n o f the S ta te o f C a lifo r n ia , and in C a lifo rn ia h is to r y and c i v i c s . As i s presen ted in the data summarized in Table 7, Appendix G, th ree o f the tw en ty-seven d i s t r i c t s i n v e s t i ga ted , or 11.1 per c e n t, rep orted t h is s e c tio n to have caused a problem. Persons inverview ed in the three d i s t r i c t s s ta te d th a t the problem arose from the fa c t th a t the s e c tio n was an unnecessary d u p lic a tio n o f S ec tio n 7700. No su g g estio n s were o ffe r e d fo r s o lu tio n o f th e problem. Grade le v e l o f req u ired c o u r s e s. . S e c tio n 7902 was s e le c te d by the jury as a p o ssib le source o f d i f f i c u l t y to the d i s t r i c t s . This s e c tio n a p p lie s to a l l sc h o o l d is t r ic t s and s t a t e s : S e c tio n 7902. Grade L evel o f Required Courses I n str u c tio n in the cou rses req u ired by S ectio n 7901 s h a ll b eg in not la t e r than the opening o f the e ig h th grade and s h a ll con tin u e in th e high sch o o l course and in cou rses in s t a t e c o lle g e s , the u n iv e r s i t ie s , and ed u ca tio n a l departments o f s t a t e , m u n icip al, and p riv a te i n s t i t u t io n s , to an e x te n t to be determ ined by th e Superintendent o f P u b lic In str u c tio n . As may be seen in Table 7, Appendix G, four o f the tw en ty-seven d i s t r i c t s in v e s tig a te d , or 14.8 per c e n t, reported th a t problems were encountered in attem p tin g to j i enforce the requirem ents o f th is s e c tio n . The fo llo w in g reasons were given by the persons in terview ed in the four d is t r ic t s : (1) D esign ation o f grade le v e l was considered too s p e c if i c , producing an unwise r ig id it y in the cu rricu lum. (2) D esignation o f grade le v e l dim inished lo c a l c o n tr o l. (3) The se c tio n was considered redundant. The su g g estio n was made th a t a so lu tio n to the problem could p o ssib ly be accom plished i f the s e c tio n were made more g en era l, or were d e le te d from the Code. Advanced course p r e r e q u is ite s . S ectio n 7903 was chosen by the jury as one which might cause problems to the d i s t r i c t s . This s e c tio n a p p lie s to high sch ool and u n ifie d d i s t r i c t s , and s t a te s : S ectio n 7903. P r e r e q u isite s to Advanced Courses B asic in str u c tio n in geography, U nited S ta tes h is to r y , c i v i c s , the D ecla ra tio n o f Independence, the C o n stitu tio n o f the U nited S ta te s , and in American in s t it u t io n s and id e a ls as p rescribed by S ectio n s 7901, 7902, and 7604 o f th is code s h a ll be p r e r e q u isite to p a r tic ip a tio n by p u p ils in advanced cou rses in v o lv in g the study o f problems in so c io lo g y , p o l it i c a l s c ie n c e , econom ics, fo r eign tra d e, and fo reig n a f f a ir s . As may be seen in Table 7, Appendix G, s ix o f the tw enty-seven d is t r ic t s in v e s tig a te d , or 22.2 per c e n t, reported th at they had encountered problems in attem pting 248 to carry out the p ro v isio n s o f t h is s e c tio n . Southern C a lifo rn ia and u n ifie d d is t r ic t s reported the problem most o fte n . Northern C a lifo rn ia d is t r ic t s did not report the problem a t a l l . Persons in terview ed in the s ix d is t r ic t s gave the fo llo w in g reasons for the d if f ic u lt y : (1) The requirem ent was f e l t to be u n en forceab le, e s p e c ia lly as i t concerned stu d en ts tr a n sfe r r in g in to a sch ool who lacked the p r e r e q u isite tr a in in g . (2) The s p e c if i c it y o f the s e c tio n created unwholesome r ig id it y in the curriculum and reduced lo c a l c o n tr o l. The su g g estio n was o ffe r e d th a t a so lu tio n to the problem could be accom plished i f the s e c tio n were made more g en er a l, or were elim in a ted from the Code. In str u ctio n in p u b lic s a fe ty and a ccid en t p rev en tio n . S ectio n 8001 was not chosen by the ju ry . I t a p p lie s to a l l school d i s t r i c t s , and s t a te s : S ectio n 8001. In stru ctio n in P ublic S afety and A ccident Prevention In stru ctio n s h a ll be given in every elem entary and secondary sch ool in the S ta te in the su b jec ts o f p u b lic s a fe ty and a ccid en t p reven tion . S p e cia l emphasis s h a ll be devoted to the avoidance o f hazards upon s t r e e t s and highways. Survey r e s u lts summarized in Table 7 o f Appendix G r e v e a l th at three o f the tw enty-seven d is t r i c t s in v e s- ■ 249 tig a te d (1 1 .1 per cen t) reported the s e c tio n to have caused a problem. The reason fo r the problem was th a t placement o f the requ ired in s tr u c tio n in the o v e r -a ll curriculum was d i f f i c u l t . The su g g e stio n was o ffe re d th a t some s o lu tio n to the problem might be accom plished i f th e re q u ire d in s t r u c tio n were made in c id e n ta l and n o t a s e p a ra te course o f stu d y . Courses in f ir e p rev en tio n . S ectio n 8053 was not m entioned by the ju ry as a p o ssib le source o f d if f ic u lt y to d i s t r i c t s . The s e c tio n a p p lie s to a l l sch ool d i s t r i c t s and s t a te s : S ectio n 8053. Aims and Purposes o f Courses in F ire P revention The aims and purposes o f th e courses o f f i r e p rev en tio n s h a l l be as fo llo w s: (a) To crea te an understanding o f the cause and o r ig in o f f i r e s . (b) To emphasize the dangers o f c a re le s s n e s s and n e g le c t in homes and p u b lic b u ild in g s , and the n e c e s s ity o f care in th e use o f f i r e s . (c) To promote an in te r e s t in p reventin g f ir e s and the p r o te c tio n o f liv e s and property. I t i s seen in the survey r e s u lts summarized in Table 7 o f Appendix G th a t four o f the tw enty-seven d is - 250 t r i c t s in v e s tig a te d (1 4 .8 per cen t) reported th a t th is s e c tio n had caused problem s. Persons in terview ed in the four d i s t r i c t s gave the fo llo w in g reasons fo r the problems: (1) The meaning o f the s e c tio n i s u n clea r. (2) I t was f e l t th at there was l i t t l e com pliance w ith the requirem ents o f the s e c tio n , g e n e r a lly . The su g g estio n was o ffe r e d th a t such in s tr u c tio n be made in c id e n ta l. Automobile d riv er ed u ca tio n . S ectio n 8105 was not s e le c te d by the jury as a major source o f d if f ic u lt y to sch o o l d i s t r i c t s . The s e c tio n a p p lie s to high sch o o l and u n ifie d d i s t r i c t s , and s ta te s : S ectio n 8105. Compulsory Automobile D river Education; E xceptions (a) From and a fte r the e f f e c t iv e date o f t h is amendment the governing board o f each d is t r ic t m aintaining a secondary sch o o l s h a ll provide autom obile d riv er education fo r p u p ils e n r o lle d in the regu lar f u l l time day secondary sch o o ls in the d i s t r i c t . Such d riv er education s h a ll be given in one o f the grades 9 , 10, 11, or 12 in every such secondary sch o o l but need not be given in any such secondary sch o o l which term inates w ith the n in th or ten th grade. Such d riv er educa tio n s h a ll be given a l l such p u p ils p rio r to gradu a tio n from the tw e lfth grade except as otherw ise perm itted under t h is s e c tio n . (b) A p u p il who has com pleted such d riv er edu ca tio n in any secondary sch o o l s h a ll n ot be r e quired to repeat such d riv er education in another secondary sch o o l in the same or another d i s t r i c t . 251 (c) The governing board o f a d i s t r i c t may grant su ch exem ptions as i t determ ines to be d e sir a b le in r e sp e c t to tw e lfth grade p u p ils who tr a n s fe r to a sch o o l in such d i s t r i c t in which d r iv e r ed u cation i s given in a lower grade. (d) N otw ithstanding the fo reg o in g p ro v isio n s o f t h is se c tio n th e governing board o f a sch o o l d i s t r i c t may make a p p lic a tio n to the S ta te Depart ment o f Education for a p a r t ia l or t o t a l exemp tio n during each su cceed in g sch o o l year in r e sp ect to one or more o f the sc h o o ls in the d i s t r i c t from th e requirem ent th a t the d is t r i c t m aintain autom obile d riv er ed u cation in th e sch o o l or sch o o ls named in the a p p lic a tio n . The a p p lic a tio n may be granted by the S ta te Department o f Educa tio n o n ly when i t determ ines upon the b a s is o f the a p p lic a tio n th a t i t i s not p r a c tic a l fo r good and s u f f ic ie n t reason s to m aintain d riv er ed u cation in any d esig n a ted sc h o o l or sc h o o ls . As i s d isp la y ed in Table 7 o f Appendix G, fiv e o f the tw enty-seven d i s t r i c t s surveyed (1 8 .5 per cen t) s ta te d th a t th is s e c tio n had caused problems to them. Northern C a lifo rn ia and u n ifie d d i s t r i c t s rep orted the problem most o fte n , as d id large d i s t r i c t s . The persons in terv iew ed in the f iv e d i s t r i c t s gave the fo llo w in g reasons for th e e x iste n c e o f problem s: (1) I t was f e l t th a t the d riv e r education requirem ents were too r ig id . (2) The s e c tio n created d i f f i c u l t i e s in sch ed u lin g . (3) The scope o f e le c t iv e s u b je c ts was reduced by the s e c tio n . The su g g e stio n was o ffe r e d by those in terv iew ed th a t one s o lu tio n fo r the problem would be fo r d riv er 252 ed u cation to be l e f t to some agency oth er than the sc h o o l. Minimum elem entary in s t r u c t io n . S ectio n 8159 was s e le c te d by the jury as a p o ssib le source o f d i f f i c u l t y to d i s t r i c t s . The s e c tio n a p p lie s to elem entary and to u n ifie d d i s t r i c t s , and s t a t e s : S e c tio n 8159. Minimum In str u c tio n in Elementary Schools A ll p u p ils e n r o lle d in the elem entary s c h o o ls , excep t p u p ils excu sed , s h a ll be requ ired to a tten d upon the cou rses o f p h y sic a l ed u cation fo r an in s tr u c tio n a l p eriod in each sch o o l day which s h a ll be not le s s than 20 m inutes e x c lu s iv e o f r e c e s s e s and the lunch p erio d . Exam ination o f the data summarized in Table 7, Appendix G, r e v e a ls th a t s i x o f the tw enty-seven d i s t r i c t s in v e s tig a te d (2 2 .2 per cen t) rep orted th a t t h is s e c tio n had caused problems for the d i s t r i c t s . Large and u n ifie d d i s t r i c t s were th ose p rim arily a f fe c t e d . The persons in terv iew ed in th e s ix d i s t r i c t s gave the fo llo w in g rea sons fo r the e x iste n c e o f the problems: (1) The r ig id it y o f the tim e requirem ent made f le x ib le sch ed u lin g d i f f i c u l t . (2) The s e c tio n did n ot make p ro v isio n fo r ch ild re n who needed a s p e c ia l p h y sic a l ed u cation program. (3) I t was d i f f i c u l t to in su re uniform com pliance. A lte rn a tiv e su g g e stio n s were o f fe re d by those 253 in terv iew ed , fo r the s o lu tio n o f the problems: (1) the s e c tio n should be made more f le x ib le by d e le tin g the tim e requirem ent or making i t p erm issiv e; or (2) the e n tir e s e c tio n should be d e le te d from th e Code. Minimum secondary in s tr u c tio n . S ec tio n 8160 was s e le c te d by the jury as a p o s s ib le source o f d i f f i c u l t y to d i s t r i c t s . The s e c tio n a p p lie s to high sch ool and u n ifie d d i s t r i c t s , and s ta te s : S e c tio n 8160. Minimum In str u ctio n in Junior and Senior High Schools A ll p u p ils e n r o lle d in the ju n io r or sen io r h igh s c h o o ls , except p u p ils excused, s h a ll be req u ired to a tten d upon the cou rses o f p h y sica l ed u cation fo r an in s tr u c tio n a l period in each sc h o o l day which s h a ll be n ot le s s than the len g th o f th e reg u la r academic periods o f the sc h o o l. The summ arization o f survey r e s u lts p resen ted in Table 7 (see Appendix G) re v ea ls th a t elev en o f the tw enty- seven d i s t r i c t s in v e s tig a te d (4 0 .7 per cen t) reported t h is Code s e c tio n to have caused problem s. Large, u n if ie d , and Southern C a lifo rn ia d is t r i c t s c ite d the problems most o fte n . Those in terv iew ed in the elev en d is t r i c t s gave the fo llo w in g reasons fo r the e x iste n c e o f problems in con n e c tio n w ith the p ro v isio n s o f th e Code s e c tio n : (1) The tim e requirem ent made f le x ib le sch ed u lin g im p o ssib le. 254 (2) Uniform enforcem ent was im p o ssib le when, as was o fte n the c a s e , time fo r d river tr a in in g was taken out o f the p h y sic a l ed u cation p eriod . (3) The time requirem ent was in c o n s is te n t w ith that fo r the elem entary sc h o o ls . (4) The s e c tio n reduced the scope o f the e le c t iv e s program. In terview ees o ffe r e d the su g g e stio n th at the se c tio n be made more f le x ib le by d e le tin g the time re q u ir e ment, or by making i t p erm issiv e, or by making the su b jec t o f p h y sic a l education an e l e c t iv e . D is t r ic t te s t in g program. The jury chose S ectio n 12822 o f the Education Code as one th a t m ight cause prob lems to the d i s t r i c t s . This s e c tio n a p p lie s to a l l sch o o l d i s t r i c t s , and s ta te s : S ectio n 12822. D is t r ic t Governing Boards to I n s t itu t e Program The governing board o f each d i s t r i c t s h a ll, in accordance w ith th e ru les and r e g u la tio n s o f the S ta te Board o f E ducation, in s t it u t e a t e s t in g program in the d i s t r i c t and s h a l l , except as o th er w ise provided in t h is s e c t io n , s e le c t from the approved l i s t the achievem ent and in t e llig e n c e t e s t s to be used in th e t e s t in g program. The county board o f ed u cation s h a ll s e le c t from the approved l i s t o f achievem ent and in te llig e n c e t e s t s the t e s t s to be used in the t e s t in g program o f each elem entary d i s t r i c t w hich had le s s than 901 u n its o f average d a ily attend ance during the preceding f i s c a l year and each u n ifie d d i s t r ic t which had l e s s than 1,501 u n its o f average d a ily 255 attendance during the preceding f i s c a l y ea r , which d i s t r i c t i s under the j u r is d ic t io n o f the county su p erin ten d en t o f sc h o o ls o f the cou n ty. The fin d in g s o f th e survey which are summarized in Table 7 (Appendix G ) r e v e a l th a t more than one h a lf o f the tw en ty-seven d i s t r i c t s in v e s tig a te d (5 5 .6 per cen t) r e p o r t ed th a t t h is s e c tio n cr ea ted problems fo r them. Large elem entary d i s t r ic t s were a ffe c te d more than were any o th e r s. The persons in terv iew ed in the f if t e e n d i s t r i c t s gave the fo llo w in g reasons fo r the e x iste n c e o f problems: (1) D is t r ic t s were forced in to t e s t in g sch ed u les u n su ited to th e ir needs ( c ite d by fiv e d i s t r i c t s ) . (2) The s e c tio n caused an a d d itio n a l o u tla y o f lo c a l funds ( c it e d by th r e e ). (3) D elays in r e c e iv in g the r e s u lts o f t e s t s dim inished the valu e o f the r e s u lts in gu idan ce, co u n sel- i in g , and improving the t o t a l ed u ca tio n a l program. The d elays were caused by the volume o f sco rin g to be done when a l l d i s t r i c t s were te s te d a t one tim e ( c it e d by s i x d i s t r i c t s ) . (4) I t was feared th a t the r e s u lts would be used to compare d i s t r i c t s u n fa ir ly , and th a t i f such were the c a s e , tea ch ers would s t a r t tea ch in g fo r the t e s t s . (5) The s e c tio n reduced the lik e lih o o d o f exp erim en tation in sc h o o l d i s t r i c t s . (6) The purpose o f the requirem ent 256 was u n clea r. (7) I n it ia t iv e in developing a t e s tin g pro gram s u ite d to the needs o f th e lo c a l community was reduced. (8) Freedom o f ch oice in the t e s t s to be used was reduced. The follow in g su g g estio n s were o ffe r e d by in te r view ees fo r the s o lu tio n o f th e problems: (1) The purpose o f the requirement should be made c le a r , as should the use to which the r e s u lt s would be put. (2) Greater f l e x i b i l i t y in type of t e s t s and sch ed u lin g should be allow ed. (3) S ta te money should be provided fo r a s ta te t e s tin g program. Mandatory S ectio n s from the A d m in istrative Code, T itle 5--E ducation S ix se c tio n s con tained in the A dm in istrative Code, T itle 5--E du cation , were examined from the p oin t o f view o f p o ssib le problems which they had caused to sch o o l d is t r i c t s . The fin d in g s are summarized in Table 7, contained in Appendix G o f th is d is s e r ta tio n . Moral su p erv isio n in th e sc h o o l. S ectio n 24 o f th is part o f the A d m in istrative Code was not s e le c te d by the jury as being p a r tic u la r ly d i f f i c u l t fo r sch o o l d is - ; t r i c t s to en force. I t a p p lies to a l l d i s t r i c t s , and 257 S t a t e s : S ection 24. Moral Supervision P r in c ip a ls and teach ers s h a ll e x e r c ise c a r e fu l su p erv isio n over the moral co n d itio n in th e ir r e sp e c tiv e sc h o o ls . Gambling, im m orality, p r o fa n ity , freq u en tin g p u b lic pool rooms, the use o f tob acco, n a r c o tic s , and in to x ic a tin g liq u o r s on the sch o o l grounds, or elsew here on the part o f p u p ils s h a ll not be to le r a te d . One o f the tw enty-seven d i s t r i c t s in v e s tig a te d ( i . e . , 3 .7 per cen t) reported th a t t h is s e c tio n had caused a problem, and th a t i t was f e l t th a t the s e c tio n was d i f f i c u lt to en fo rce . No su g g estio n fo r the so lu tio n o f the problem was o ffe r e d . Secondary program o f s t u d ie s . S ectio n 96 was not s e le c te d by the jury as a p o s s ib le source o f d i f f i c u l t y for sch o o l d i s t r i c t s . The s e c tio n a p p lie s to high sch o o l and u n ifie d d i s t r i c t s , and s t a te s : S ectio n 9 6 . Program o f S tu d ies in Secondary Schools The governing board o f each sch o o l d i s t r i c t m aintaining one or more secondary sch o o l s h a ll e s ta b lis h and m aintain u n ifie d cou rses o f study d esigned to f i t the needs o f p u p ils adm itted to the sch o o l or sc h o o ls o f as many years in len g th as the grades m aintained and cou rses o f in s tr u c tio n fo r the c i v ic and lib e r a l ed u cation o f the c it iz e n s o f the community. The S ta te Department o f Education s h a ll approve the course o f study adopted by the governing board. 258 Survey r e s u lts are summarized in Table 7 o f Appendix G. I t w i l l be observed th a t one o f the tw enty-seven d is t r i c t s , or 3 .7 per c e n t, reported t h is s e c tio n to be a cause o f d i f f i c u l t y . The reason given was th a t nothing was ever heard from the S ta te Department o f Education con cern in g the p ro v isio n s o f the s e c tio n ; th e r e fo r e , the d i s t r i c t was unaware o f whether or n ot i t s course o f study had been approved. No su g g estio n was o ffe r e d fo r the s o lu tio n o f the problem. R equired secondary in s t r u c t io n . S ectio n 97 o f t h is part o f the A d m in istrative Code was s e le c te d by the jury as a p o s s ib le source o f d i f f i c u l t y to sch o o l d i s t r i c t s . The s e c tio n a p p lie s to high school and u n if ie d d i s t r i c t s , and s t a t e s : S e c tio n 9 7 . Required In str u c tio n in Secondary Schools The governing board o f each school d i s t r i c t m a in ta in in g one o r more secondary schools s h a ll p re s c rib e courses o f in s t r u c tio n which s h a l l be re q u ire d o f a l l p u p ils and which, in a d d itio n to in c lu d in g those re q u ire d by law, s h a ll in clu d e cou rses o f in s t r u c tio n : (a) In the u se o f E n g lish to promote the s a tis f a c t o r y m astery o f o r a l and w r itte n E n g lish . (b) The governing board o f the sch o o l d is t r i c t s h a ll provide cou rses o f in s tr u c tio n in the Con 259 s t it u t io n o f the U nited S ta t e s , and in American h is t o r y , in clu d in g the study o f American i n s t i t u tio n s and id e a ls and o f the p r in c ip le s o f s t a te and lo c a l government e s ta b lis h e d under the Con s t it u t io n o f t h is S ta te , in len g th not le s s than 15 sem ester p eriod s in every ju n io r h igh sc h o o l, se n io r h igh s c h o o l, and four year high sch o o l; and in every ju n io r c o lle g e fo r a t le a s t three c r e d it h ours. (1) A sem ester p eriod i s d efin ed as one p eriod o f 40 to 60 m inutes per week throughout one sem ester o f n ot le s s than 17 weeks. As i s e x h ib ite d in Table 7, Appendix G, four o f the tw enty-seven surveyed d i s t r i c t s , or 14.8 per c e n t, r e p o r t ed t h is s e c tio n to have crea ted problems fo r them. The persons in terv iew ed in the four d i s t r i c t s gave the fo llo w in g as the reasons fo r the e x is te n c e o f problems: (1) The r ig id it y o f the s e c tio n was f e l t to reduce f l e x i b i l i t y in the curriculum , (2) Compliance w ith the requirem ents made adjustm ent to in d iv id u a l d iffe r e n c e s d i f f i c u l t . (3) Time requirem ents were not f e l t to be the answer to the search fo r q u a lity and high standards in ed u ca tio n . The su g g estio n s o ffe r e d fo r s o lu tio n o f the problem were th a t the s e c tio n be made more p er m issiv e, or th a t i t be d e le te d from the Code. Graduation req u irem en ts. S ec tio n 102 was s e le c te d by the ju ry as co n ta in in g some p ro v isio n s th a t posed prob- 260 lems to sc h o o l d i s t r i c t s . The s e c tio n a p p lie s to high sch o o l and u n ifie d sch o o l d i s t r i c t s , and s t a te s : S e c tio n 102. Requirements fo r Graduation from Secondary School (a) The governing board o f a sch o o l d i s t r i c t m ain tain in g a secondary sch o o l s h a ll au th o rize to graduate, from any secondary sc h o o l, any p u p il o f good ch aracter and c itiz e n s h ip who s a t i s f a c t o r il y com pletes the f u l l curriculum p rescrib ed fo r the sch o o l in which the p u p il i s r e g u la r ly e n r o lle d and in attendance a t the time o f com p le tio n o f h is work, in clu d in g in s tr u c tio n in th e C o n stitu tio n o f the U nited S ta te s , and in American h is to r y in clu d in g the study o f American in s t it u t io n s and id e a ls , and o f the p r in c ip le s o f s ta te and lo c a l government e s ta b lis h e d under the C o n stitu tio n o f t h is S ta te , and the su c c e ss f u l p a ssin g o f an exam ination thereon . (b) The governing board o f a sch o o l d i s t r i c t m ain tain in g a four year or se n io r h igh sch o o l s h a ll grant diploma o f h igh sch o o l graduation fo r the com pletion o f a course o f study or cur riculum which in clu d es not le s s than 190 sem ester p eriod s and not more than 240 sem ester p eriod s o f classroom in s tr u c tio n and su p ervised le a rn in g , in clu d in g work ex p erien ce. (1) A sem ester p eriod i s d efin ed as one p eriod o f 40-60 m inutes per week through one sem ester o f not le s s than 17 weeks. When a sch o o l is o p era tin g on a minimum sch o o l day (fou r clo ck hours) adjustm ents in len g th o f p eriod or number o f p eriod s per week may be made w ithout red u ctio n o f the number o f sem ester p eriods which would oth erw ise be c r e d ite d . (c) Om itted. (d) The governing board o f a sch o o l d i s t r i c t m aintain in g a secondary sch o o l s h a ll award the ap propriate diploma or degree whenever a p u p il 261 s h a ll have com pleted a l l requirem ents o f a f u l l curriculum o f the secondary sch o o l w ithout regard to th e le n g th o f tim e a c tu a lly taken by the p u p il to com plete such requ irem en ts. (1) The governing board o f a sch ool d i s t r i c t s h a ll grant to any p u p il who s a t is f a c t o r ily com pletes the requirem ents o f any course o f study in le s s than the p rescrib ed tim e, the f u ll number o f sem ester p eriods or c r e d it hours scheduled fo r such cou rse. (e) The governing board o f a sc h o o l d i s t r i c t main ta in in g a secondary sch o o l s h a ll is s u e a c e r t i f i c a t e o f com pletion to any p u p il who s u c c e s s fu lly com pletes any course o f study or curriculum in len gth le s s than th e f u l l number o f years and grades m aintained by sc h o o l. ( f) The governing board o f a sc h o o l d is t r i c t main ta in in g a secondary sch o o l s h a ll is s u e a c e r t if i c a t e o f com pletion to any p u p il who s u c c e s s fu lly com pletes any course o f study or curriculum in len gth le s s than the f u l l number o f years and grades m aintained by sc h o o l. (g) The governing board o f a sc h o o l d is t r i c t main ta in in g a high sc h o o l may award a diploma o f gradua t io n to a person honorably d isch arged from the armed fo r c e s o f the U nited S ta te s who: (1) Entered a c tiv e se r v ic e in such armed fo rce s subsequent to September 16, 1940, and served th e r e in fo r not le s s than 90 days and (2) Completed T ests o f General Education Development (h igh sch o o l le v e l) prepared by the American C ouncil on Education w ith an average sco re o f 45, or above, on the fiv e t e s t s in th e b a tter y and w ith a standard score o f 35, or above, on each o f the f iv e t e s t s in the b a tte r y , and (3) Has met the s t a t e le g a l requirem ent o f U nited S ta te s h is to r y and U nited S ta te s C o n stitu tio n in a d d itio n to the re q u ir e ments p rescrib e d by the governing board o f the h ig h sc h o o l gran tin g the diplom a. 262 As may be seen in the survey r e s u lts summarized in Table 7 , Appendix G, n in e o f the tw en ty-seven d i s t r i c t s in v e s tig a te d , or 3 3 .3 per c e n t, reported th a t t h is s e c tio n had caused problems fo r them. Small and la rg e and u n ifie d d is t r ic t s reported the problems most fr e q u e n tly . The persons in te rv iew ed in th e n in e d i s t r i c t s gave the follow ing as the reaso n s fo r the e x iste n c e o f problem s: (1) I t was co n sid ered extrem ely d i f f i c u l t to d efin e " c h a r a c te r 1 ’ and " c itiz e n s h ip " in term s o f th e requirem ent and th e s e c tio n , th e r e f o r e , was vague and i n d e f i n i t e . (2) The exam ination requirem ent was u n c le a r as to w hether a s tu d e n t had m erely to take the exam ination, o r i f he was re q u ire d to pass i t . I f he had to pass i t , i t was u n c le a r as to th e le v e l a t which he was re q u ire d to do so —h is own, or some uniform standard. (3) R igid adher ence to the exam ination requirem ent problem in crea sed the lik e lih o o d o f "d rop -outs." (4) The d e f in itio n o f a semes te r p eriod was too s p e c if i c . (5) The requirem ents elim in a ted the p o s s ib ili t y o f e le c t iv e s v i t a l to many stu d e n ts. The fo llo w in g su g g estio n s were o ffe r e d as p o s s ib le s o lu tio n s to the problems: (1) "Character" and " c itiz e n ship" should be more p r e c is e ly d efin ed i f r e ta in e d in the | s e c tio n . (2) The s e c tio n should be made much more g e n e r a l. 263 (3) Local d i s t r i c t s should have g rea te r power in determ in in g graduation requirem ents. F ir s t a id in s t r u c t io n . S e ctio n 102.1 was not m entioned by the ju ry as a p o s s ib le source o f d if f ic u lt y to sch o o l d i s t r i c t s . This s e c tio n a p p lie s to h igh sch o o l and u n ifie d d i s t r i c t s , and s t a te s : S e c tio n 1 0 2 .1 . F ir s t Aid In str u c tio n Required In a l l secondary s c h o o ls , in s tr u c tio n in the p r in c ip le s and p r a c tic e o f f i r s t a id s h a ll be r e quired fo r grad u ation , excep t for a p u p il whose parents or guardian s ta te in w r itin g th a t such in s tr u c tio n i s contrary to th e ir r e lig io u s b e l i e f s . As i s e x h ib ite d in Table 7, Appendix G, th ree o f the tw enty-seven d i s t r i c t s surveyed, or 11.1 per c e n t, reported th a t t h is s e c tio n had crea ted problems for them. The persons in terv iew ed in th ese th ree d i s t r i c t s gave as the reason fo r the e x is te n c e o f the problem th a t the s e c tio n seemed unnecessary as a h igh sch o o l graduation r e quirem ent. The su g g estio n was made th a t the problem would be so lv e d by e lim in a tio n o f the s e c tio n . D river ed u ca tio n . S ectio n 173 o f t h is part o f the A d m in istrative Code was not chosen by the jury as a pos s ib le source o f d i f f ic u l t y to sch o o l d i s t r i c t s . The 264 s e c tio n a p p lie s to h igh sc h o o l and u n ifie d d i s t r i c t s , and s t a t e s : S ectio n 173. Autom obile D river Education (a) A course o f in s tr u c tio n in autom obile d riv e r ed u cation s h a ll in clu d e in s tr u c tio n by a q u a lifie d in s tr u c to r o f n ot le s s than 30 c la s s hours in the fo llo w in g areas: (1) D riving i s your r e s p o n s ib ilit y . (2) The d r iv e r . (3) N atural fo rce s a f fe c t in g d r iv in g . (4) Making, o b serv in g , and en fo rcin g t r a f f i c la w s. (5) The C a lifo r n ia V eh icle Code. (6) Major cau ses o f a c c id e n ts. (b) A c la s s hour in a course o f in s tr u c tio n in autom obile d riv er ed u cation s h a ll be o f the same len g th as a c la s s hour fo r a regu lar academic c l a s s . (c) A course o f in s tr u c tio n in autom obile d riv er ed u cation s h a ll be com pleted by a student w ith in one sch o o l y ea r . As i s p resen ted in Table 7 in Appendix G, one o f the tw enty-seven d i s t r i c t s surveyed, or 3 .7 per c e n t, rep orted t h is s e c tio n to have caused a problem. The per sons in terv iew ed in th a t d i s t r i c t gave the fo llo w in g as the reason for the problem: "The s e c tio n made sch ed u lin g d i f f i c u l t . ” No su g g estio n was o ffe r e d fo r a p o s s ib le s o lu tio n to the d i f f i c u l t y . 265 S e c tio n s That Have Not Caused Problems T h ir ty -fiv e a d d itio n a l Code s e c tio n s p erta in ed to th e problem o f th is in v e s t ig a t io n , but did not cause any problems to th e sch o o l d i s t r i c t s in clu d ed in the su rvey. The co n ten ts o f th ese Code s e c tio n s are c ite d in the f u l l com p ilation p resen ted in Appendix F. L iste d in th is s e c tio n o f the chapter are the t h ir t y - f iv e Code s e c tio n s which p erta in ed to curriculum and in s tr u c tio n but which posed no problems to the d is t r i c t s in v e s tig a te d . P r o h ib itiv e s e c tio n s from the Education Code. S e c tio n s 8453 and 8455 crea ted no problems for the sch o o l d i s t r i c t s su rveyed . _ . _ Mandatory s e c tio n s from the Education Code. The fo llo w in g t h ir t y mandatory Code s e c tio n s posed no problems to the d i s t r i c t s : 5204 7701 7853 11002 11104 5951 7702 8051 11003 11952 5953 7752 8052 11005 11954 5954 7753 8155 11006 12152 5955 7754 8156 11052 12821 7510 7755 8157 11053 12823 P r o h ib itiv e s e c tio n s from the C o n stitu tio n . One s e c t io n - - A r t ic le IV, S ec tio n 3 0 -- o f the C o n stitu tio n did n ot p resen t any problem to the d i s t r i c t s surveyed. Mandatory s e c tio n s from the A d m in istrative Code, T it le 5 --E d u ca tio n . Two mandatory le g a l requirem ents p e r ta in in g to curriculum and in s tr u c tio n con tained no problem fo r sc h o o l d i s t r i c t s . They were S ectio n s 73 and 7 3 .5 . Summary S ix te e n o f the t h i r t y - f o u r requirem ents s e le c te d by th e ju r y and by the d i s t r i c t s as bein g Code s e c tio n s which could p o s sib ly cause problems to school d i s t r i c t s were re p o rte d to have caused problems in a t l e a s t fiv e o f th e school d i s t r i c t s in v e s tig a te d . These s e c tio n s a re l i s t e d in rank o rd e r o f frequency of m ention in Table 6. i I t w i l l be seen th a t the le g a l requirem ent th a t crea ted problems in seven teen o f the tw en ty-seven d is t r i c t s d e a lt w ith elem entary cou rses o f stu d y—Education Code S ectio n 7604. Next in rank order o f frequency o f m ention was the requirem ent i n it i a t i n g a sta tew id e t e s t in g program; t h is was reported in f if t e e n o f the tw enty-seven d i s t r i c t s surveyed. Third in the ranking, the s e c tio n 267 TABLE 6 R A N K O R D E R LISTING O F LEG A L REQUIREMENTS, ACCORDING T O FR E Q U E N C Y W ITH W H IC H E A C H W A S REPO RTED T O BE A PR O B L E M T O SC H O O L DISTRICTS Number Rank o f Times Order Legal Requirement* Reported 1 Education Code, S ectio n 7604 17 2 Education Code, S ectio n 12822 15 3 Education Code, S ectio n 7700 13 4 Education Code, S ectio n 7852 11 4 Education Code, S ectio n 8160 11 6 Education Code, S ectio n 7551 9 6 T it le V --E ducation, S e c tio n 102 9 6 Education Code, S ectio n 5206 9 9 Education Code, S ectio n 5205 8 10 Education Code, S ectio n 7605 6 10 Education Code, S ectio n 7903 6 10 Education Code, S ectio n 8159 6 10 Education Code, S ectio n 5952 6 14 Education Code, S ectio n 5211 5 14 Education Code, S ectio n 5203 5 14 Education Code, S ectio n 8105 5 17 Education Code, S ectio n 7902 4 17 Education Code, S ectio n 8056 4 17 T itle V—E ducation, S e c tio n 97 4 20 Education Code, S ectio n 7553 3 20 Education Code, S ectio n 7901 3 20 Education Code, S ectio n 8001 3 20 Education Code, S ectio n 8454 3 20 Education Code, S ectio n 8451 3 20 T it le V—E ducation, S e ctio n 102.1 3 * R efer to Appendix F fo r an ex p la n a tio n o f the con ten t c f each l i s t e d le g a l requirem ent. 268 TABLE 6 (con tin u ed ) R A N K O R D E R LISTING O F LEG AL REQUIREM ENTS, ACCO RDING T O FR E Q U E N C Y W ITH W H ICH E A C H W A S REPO RTED TO BE A PR O B L E M TO SC H O O L DISTRICTS Rank Order Legal Requirement Number o f Times Reported 26 Education Code, S e c tio n 8452 2 26 Education Code, S e c tio n 8053 2 28 Education Code, S ec tio n 7601 1 29 Education Code, S e c tio n 71 1 30 Education Code, S e c tio n 7851 1 31 Education Code, S e c tio n 7851 1 32 Education Code, S e c tio n 7552 1 33 T it le V --E ducation, S ectio n 96 1 34 T i t le v --E d u ca tio n , S ectio n 173 — 1 269 d ea lin g w ith the secondary course o f stu d y, was rep o rted ly a problem in th ir te e n o f the tw enty-seven d i s t r i c t s . Two le g a l requirem ents were reported w ith the same frequency ( i . e . , by elev en o f the tw enty-seven d i s t r i c t s ) ; they were the p ro v isio n s p erta in in g to (1) manners and m orals, a lc o h o l and n a r c o tic s; and (2) p h y sica l education time requirem ents for secondary sc h o o ls. Three requirem ents were reported by nine o f the tw enty-seven d i s t r i c t s . They p ertain ed to (1) the en fo rce ment o f the required course o f study and use o f textbooks by the governing board; (2) the le g a l requirement found in A dm in istrative Code, T itle 5 , which e s ta b lis h e s graduation requirem ents from high sch o o l; and (3) the observance o f Susan B. Anthony Day. Next in rank ord er, reported by eig h t d i s t r i c t s , was the requirement d ea lin g w ith C onservation, Bird and Arbor Day. Four requirem ents were each reported by s ix d i s t r i c t s ; they were the requirem ents d ea lin g w ith (1) minimum time requirem ents fo r c e r ta in courses in the e l e mentary sch o o ls; (2) estab lish m en t o f p r e r e q u isite s for advanced courses in s o c io lo g y , p o l i t i c a l s c ie n c e , econom i c s , fo reig n tra d e, and fo reig n a f f a ir s ; (3) time req u ire- j ments in p h y sica l ed u cation fo r the elem entary sc h o o ls; , 270 and (4) the esta b lish m en t and m aintenance o f co n tin u a tio n s c h o o ls . Each o f th ree le g a l requirem ents have posed problems to fiv e o f the d i s t r i c t s ; they p erta in ed to (1) requ ired d a ily p a t r io t ic e x e r c is e s ; (2) the observance o f L incoln and Washington b irth d a y s; and (3) the compulsory automo b il e d riv er ed u cation program. The Views o f A dm inistrators Concerning Curriculum L e g is la tio n in General At the c lo s e o f the in te r v ie w s, a f t e r having id en t i f i e d the le g a l requirem ents which had caused problems fo r th e ir d i s t r i c t s , and commenting on th ese problem s, the ad m in istra to rs were asked to respond to the fo llo w in g q u e s tio n s : 1. Is c e n tr a liz a tio n o f a u th o rity in curriculum a d v isa b le? 2. Is p iece-m ea l curriculum le g is la t io n w ise? 3. Can we provide fo r the in d iv id u a l stu d en t through s t a t e c o n tr o l o f curriculum ? 4 . What su g g estio n s do you have fo r changing the p resen t co n d itio n o f curriculum le g is la t io n in 271 C alifo rn ia ? 5. Are the number o f le g a l requirem ents a problem? 6. Do you think there w i l l be more curriculum le g is la t io n in the future? 7. What should be the r o le or p o s itio n o f the p r o fe ssio n a l educator in regard to curriculum le g is la tio n ? Although responses to the q u estio n s v a ried w id ely , c e r ta in common b e lie f s were ev id e n t. The resp onses were analyzed and reported from two p o in ts o f v ie w --v a r ia tio n and s im ila r ity . Where the number o f tim es a p a r tic u la r response was given was reported, i t was in referen ce to the t o t a l p opu lation o f tw enty-seven d i s t r i c t s in which in terv iew s took p la c e . The reasons given fo r the resp onses freq u en tly to ta le d more than tw enty-seven because many o f the persons in terview ed gave more than one reason fo r th e ir v iew p o in ts. Is C e n tra liz a tio n o f A u th o rity in Curriculum A d v isab le? Responses to t h is q uestion ranged from an u n q u a li fie d '’ No" to a q u a lifie d "Yes." Most answers were q u a li fie d in some way. 272 F ifte e n resp o n ses were e s s e n t i a l l y "No." Reasons given were (1) th e need fo r lo c a l c o n tro l to respond to lo c a l needs and in d iv id u a l d iffe re n c e s among d i s t r i c t s and p u p ils ( c ite d by n in e ) ; (2) the need fo r f l e x i b i l i t y in the e d u c a tio n a l program ( c ite d by th r e e ) ; (3) the need fo r e x p e rim e n ta tio n a t th e lo c a l le v e l ( c ite d by one) and (4) th e b e l i e f th a t th e re was a lre a d y too much s t a t e c o n tro l ( c ite d by tw o). Eleven resp on ses in d ic a te d th a t th e a d v is a b ility o f c e n tr a liz a tio n o f a u th o rity in curriculum was a m atter o f d egree. The proper fu n ctio n o f the le g is la t u r e was seen to be th a t o f p rovid in g g en era l g o a ls or p o lic ie s ; th is was c ite d by s ix . Twelve resp on ses in d ic a te d that c e n tr a liz a tio n o f a u th o rity was proper to the ex te n t th a t i t provided g u id e lin e s fo r minimum requirem ents and a degree o f u n iform ity throughout the s t a t e . Any s p e c if ic s in such g u id e lin e s should be l e f t to p r o fe s s io n a l educa t o r s - - ! . e . , the S ta te Department o f Education--w as the c o n v ic tio n o f th ree in te r v ie w e e s . One a d m in istra to r answered the q u estio n w ith a '•Yes,” but q u a lifie d i t by adding th a t any c e n tr a liz a tio n o f a u th o r ity in curriculum should be g en era l in n atu re. I Another exp ressed the b e l i e f th a t lo c a l d i s t r i c t s could 273 not be granted com plete freedom in a l l m a tters. In summary, resp on ses v a r ie d from an u n q u a lifie d "No" to a q u a lifie d "Yes." They were s im ila r , however, in r e f le c t in g b e l i e f s th a t s t a te c o n tr o ls should be gen eral in n a tu re, p rovid in g p rim arily fo r g u id e lin e s , minimum requirem ents, and some degree o f u n iform ity w ith in the s t a t e ; and th a t there should be a great d ea l o f lo c a l c o n tr o l in curriculum m a tters. Is P iece-m eal Curriculum L e g is la tio n W ise? The resp on ses to t h is q u estio n ranged from an un q u a lifie d "No" to a q u a lifie d f,Y es." Most o f th e answers were ex p la in ed in some way. A ll but one o f the resp on ses were e s s e n t ia lly n e g a tiv e , in d ic a tin g th a t the in te r v ie w ees b e lie v e d th a t the curriculum l e g is la t io n ex ta n t was th e r e s u lt o f "piece-m eal" e f f o r t s . Reasons given fo r the ,r No" answers were (1) e x is t in g curriculum l e g is la t io n was con fu sin g and o fte n co n tra d icto ry ( c ite d by th r e e ); (2) some e x i s t ing curriculum l e g is la t io n did n ot make sense ( c it e d by f iv e ) ; and (3) e x is tin g curriculum le g is la t io n was the r e s u lt o f p ressure groups and p o l i t i c a l a c t iv it y (c ite d by f o u r ) . Although one in terv iew ee f e l t th a t l i t t l e could be done about the s ta te o f curriculum le g is la t io n , se v era l o ffe r e d su g g estio n s as to how improvements should be brought about. Five c ite d the need fo r order and c la r it y in the requirem ents, and s ix in d ica ted th a t such order should come about through c a r e fu l study by p r o fe ssio n a l educators given s u f f ic ie n t time to do a p r o fe ssio n a l job . One sa id th a t such study was not lik e ly to produce r e s u lts b ecau se, in h is o p in io n , educators were not s u f f ic ie n t ly in agreement as to what c o n stitu te d d e sir a b le curriculum le g is la t io n . One f e l t th a t the problem could be so lv ed by p erm issive le g is la t io n . One in terv iew ee feared th a t a com plete reo rg a n iza tio n o f curriculum law might produce worse r e s u lts than those produced by e x is tin g law s. In summary, responses v a ried from an u n q u a lified "No" to a q u a lifie d f,Y e s .M They were s im ila r , however, in in d ic a tin g a gen eral b e l i e f th a t p iece-m eal curriculum le g is la t io n was unwise and th a t order should be brought to e x is tin g curriculum law through study by p r o fe ssio n a l ed u ca to rs. Can W e Provide for the In d ivid u al Student 275 Through S ta te C ontrol o f Curriculum? The responses to th is q u estio n ranged from an un q u a lifie d "No" to a q u a lifie d "Yes." Twenty-three in t e r view ees answered in the n eg a tiv e; tw elve o f th ese gave as th e ir reason the co n v ic tio n th at on ly the lo c a l d is t r i c t could provide fo r in d iv id u a l d iffe r e n c e s because the s ta te could not know lo c a l co n d itio n s or in d iv id u a l stu d en ts. One sta te d th a t i t was d i f f i c u l t to provide for in d iv id u a l d iffe r e n c e s even a t the lo c a l le v e l. Another was opposed to a l l s p e c ia l programs. Three oth ers b e lie v e d th a t the le g is la tu r e should sta y away from s p e c if i c s , e s p e c ia lly concerning su b ject m atter content and th a t, sin c e a s tu d en t’s a b il i t y could not be le g is la t e d , i t was s e n s e le s s to try to provide fo r in d iv id u a l d iffe r e n c e s by means o f s ta te c o n tr o l. Q u a lifie d "Yes" responses in cluded the follow ing examples o f p ro v isio n s fo r in d iv id u a l d iffe re n c e s a t the s t a t e le v e l: (1) the requirem ent th a t p u p ils ' cum ulative fo ld e rs must be se n t from d i s t r i c t to d i s t r i c t ; (2) the need fo r broad g u id e lin e s because o f p o p u latio n m o b ility ( c ite d by th r e e ) ; (3) s p e c ia l e d u c a tio n a l programs ( c ite d j by one) One in terv iew ee claim ed th a t the s ta te could do it. 276 i f i t were w illin g to pay f o r i t ; and an o th er f e l t th a t i t could be done fo r the average s tu d e n t, b u t n o t as w e ll as a t th e lo c a l le v e l. In summary, th e responses ranged from an u n q u a li f ie d "No" to a q u a l if i e d tfY e s.n In g e n e ra l, i t was f e l t t h a t th e lo c a l school d i s t r i c t was i n a b e t t e r p o s itio n to provide fo r in d iv id u a l s tu d e n ts ' needs th an was the s t a t e . What S uggestions Do You Have fo r Changing th e P re se n t C ondition o f Curriculum L e g is la tio n in C a lif o r n ia ? Responses to t h i s q u e stio n v a r ie d from a su g g e stio n th a t th e e n t i r e E ducation Code be re v is e d to a su g g e stio n th a t n o th in g be done. They a lso v a r ie d from th e s p e c if ic to the g e n e ra l. Three in te rv ie w e e s in d ic a te d th a t they b e lie v e d th a t the e n t i r e E ducation Code should be r e v is e d to make i t a p erm issiv e code. Five suggested th a t th e code p r o v i sio n s be s im p lif ie d , c l a r i f i e d , and re o rg a n iz e d . I t was th e b e l i e f o f e ig h t th a t th e l e g i s l a t u r e sh o u ld r e f r a i n from p a ssin g s p e c if ic curriculum l e g i s l a t i o n and should be guided in what i t d id by the S ta te Board o r the S ta te 277 Department o f E ducation. S u ggestion s concerning the im provement o f the l e g i s l a t i v e p rocess in clu d ed the fo llo w in g: (1) There should be more resea rch b efore a b i l l i s passed (c ite d by o n e). (2) A g re a te r amount o f tim e should be spent in the co n sid e r a tio n o f a b i l l and the l e g i s l a t iv e s e s s io n should be lon ger ( c it e d by o n e). (3) Members o f education com m ittees in the le g is la t u r e should serve on th ose com m ittees lon ger (c ite d by o n e ). (4) Educators should be co n su lted concerning pending curriculum le g is la - i tio n (c ite d by se v e n ). Two in terv iew ees f e l t th a t a l l programs mandated by the le g is la t u r e should carry s t a te money to pay fo r th e ir ex e cu tio n . S ev eral reaso n s were given fo r th e su g g e stio n s made, concerning the l e g i s l a t i v e p ro c e ss. Two in te rv ie w e e s b e lie v e d th a t in c re a se d r e lia n c e by the le g i s l a t u r e on p r o fe s s io n a l ed u cato rs would h elp remove cu rricu lu m from th e in flu e n c e o f p a r t i c u l a r s e lf- s e e k in g in d iv id u a ls , d i s t r i c t s , and p re ssu re groups. A nother b e lie v e d th a t such r e lia n c e would h elp to remove th e in c lin a tio n to tr y to solve such com plicated problems as re a d in g d i f f i c u l t i e s by l e g i s l a t i o n . S u ggestion s were made as to how in crea sed r e lia n c e j on the judgment o f p r o fe s s io n a l educators could be . 278 ach ieved . E ight o f the persons expressed the idea that the p ro fessio n would have to become u n ifie d and h ig h ly organized b efore i t cou ld be in f lu e n t ia l. Two f e l t th at there should be a s in g le spokesman fo r education a t the ca b in et le v e l; two oth ers emphasized the need fo r in creased p o l i t i c a l a c t iv it y on the part o f edu cators. Changes in the le g a l s tr u c tu r e o f ed u catio n were ad v ised by two in terv iew ees who suggested th a t th e S ta te Board of E ducation be e le c te d and th a t i t app o in t the S ta te S uperintendent o f P ublic I n s tr u c tio n . In summary, the su g g estio n s v a ried w id ely , but they contained three main id ea s: (1) The le g is la tu r e should not be in volved w ith the s p e c if ic s o f curriculum . (2) P r o fe ssio n a l educators should be co n su lted when cur riculum le g is la t io n i s under c o n sid era tio n . (3) Educators must become b e tte r organized and more u n ifie d i f th e ir v o ic e s are to be heard in th ese m atters. Is the Number o f Legal Requirements a Problem? The responses to th is q u estio n ranged from an un q u a lifie d uNoH to an u n q u a lified "Yes.*' There were fiv e M No” resp o n ses. Two in terv iew ees f e l t th a t, although the number o f requirem ents was not a problem, some o f them were too d e ta ile d and some were ex tra n eo u s. One i n t e r viewee b e lie v e d th a t the number was used by school d i s t r i c t s as an excuse fo r a lack o f in te r n a l curriculum improvement. One in terv iew ee f e l t th a t th e re might be too many req u irem en ts, but th a t numbers alone was n o t the b a s ic problem. T h irtee n o f the persons in terv iew ed answered in the a ff irm a tiv e . Reasons given fo r t h e i r opinions were: (1) The number o f requirem ents reduced f l e x i b i l i t y in the curriculum (c ite d by fo u r ). (2) Requirements made adequate response to in d iv id u a l d iffe r e n c e s d i f f i c u l t (c ite d by tw o). (3) They reduced d esir a b le e le c t iv e s (c ite d by tw o). (4) Compliance w ith them took too much time out o f the sch o o l day (c ite d by th r e e ). (5) They discouraged e x p e r i m entation a t the lo c a l le v e l ( c ite d by tw o). (6) The great number made i t d i f f i c u l t to know and comply w ith them a l l (c ite d by tw o). (7) They hampered lo c a l co n tr o l and i n it i a t i v e ( c ite d by o n e). (8) Adequate fin a n cin g did not accompany mandated programs (c ite d by o n e). The lack o f agreement among those in te rv iew ed was emphasized when two s ta te d th a t the requirem ents were too s p e c if ic , and an o th er claim ed th a t they were too g e n e ra l. 280 Two in te rv ie w ees b e lie v e d th a t c o lle g e and u n iv er s i t y entrance requirem ents had as r e s t r ic t iv e an e f f e c t on sc h o o l d i s t r i c t s as did the number o f le g a l requirem ents. In summary, alm ost a l l o f the persons in terview ed f e l t th a t the number o f le g a l requirem ents was a problem , c h ie f ly because i t reduced f l e x i b i l i t y in the o v e r -a ll curriculum , and made i t d i f f i c u l t to provide fo r in d iv id u a l d iffe r e n c e s . Do You Think There W ill be More Curriculum L e g is la tio n in the F u tu re ? The resp on ses to t h is q u estio n were alm ost unani m ously in the a ffir m a tiv e . T w enty-five were ,3y e s ," one was “Perhaps," and one was "I don’t know.” Two lik e ly a d d itio n s to curriculum le g is la t io n in the future were id e n t if ie d as an extra sem ester o f C a lifo rn ia h is to r y and the c r e a tio n o f te c h n ic a l and fo r e s tr y camp sc h o o ls . Reasons given fo r the b e l i e f th a t there would be more and not le s s curriculum le g is la t io n in the future were (1) l e g i s l a t i v e d is s a t is f a c t io n w ith lo c a l d is t r i c t accom plishm ents ( c it e d by tw o); (2) in crea sed s p e c ia l pro grams ( c ite d by on e); (3) p ressure from s p e c ia l in te r e s t groups ( c it e d by th r e e ); (4) in s e c u r ity in the people 281 caused by autom ation and s c i e n t i f i c and te c h n o lo g ic a l changes (c ite d by on e); and (5) p o lit ic s (c ite d by o n e). Two in terv iew ees commented on the probable ex ten t o f the in crea se in curriculum le g is la t io n . One b e lie v e d th a t the amount would depend on how w e ll the p ro fessio n worked w ith the le g is la tu r e and the other b e lie v e d th a t i t would continue u n t il the le g is la tu r e r e a liz e d th at i t had gone too fa r . In summary, alm ost a l l persons in terview ed were o f the b e l i e f th a t there would be more curriculum le g is la t io n in the fu tu r e , due la r g e ly to what appeared to be a pre d is p o s itio n on the part o f the le g is la tu r e to lis t e n to everyone but p r o fe ssio n a l educators concerning curriculum m a tters. What Should Be the Role or P o sitio n o f the P r o fessio n a l Educator in Regard to Curriculum L e g is la tio n ? The responses to t h is q u estion were w idely v a ried . Only one in terv iew ee thought th a t there m ight be no need for concern, reasoning th a t c e n tr a liz a tio n was a trend in a l l a sp ects o f n a tio n a l l i f e - - a trend which he f e l t was not n e c e s s a r ily h o r r ib le . 282 A ll other in te r v ie w e e s exp ressed concern over what appeared to them to be a r e je c tio n by the le g is la t u r e o f the p r in c ip le th a t p r o fe s s io n a ls should be co n su lted when le g i s la t i o n concerning t h e ir s p e c ia lty was pending. The resp on ses d e a lt w ith the r o le o f p r o fe s s io n a l organ iza tio n s and the r o le o f the ed u cation p r o fe ssio n i t s e l f in curriculum le g is la t io n . S u ggestion s as to th e proper r o le o f p r o fe s s io n a l o rg a n iz a tio n s in curriculum le g is la t io n were as fo llo w s: (1) P r o fe ss io n a l groups must jo in to g eth e r to present a u n ited fro n t to the le g is la t u r e and the p u b lic in cu rr icu lum m atters ( c it e d by tw e lv e ). (2) When rep o rtin g to l e g i s l a t i v e b o d ie s, p r o fe s s io n a l groups should p resen t both m ajo rity and m in ority rep orts so th at le g is la t o r s could judge the m erits and ex ten t o f support o f both ( c ite d by o n e ). (3) P r o fe ssio n a l groups must be more aware o f the th in k in g o f t h e ir members ( c ite d by tw o). (4) There should be one spokesman fo r ed u cation ( c it e d by tw o). (5) P r o fe ssio n a l groups need to do b e tte r resea rch ( c ite d by o n e ). (6) P r o fe ssio n a l groups should provide a resou rce body to ad vise th e le g is la t u r e , perhaps through the S ta te Department o f Education ( c it e d by t h r e e ) . S u g g estio n s were made as to the proper r o le o f the ed u cation p r o fe ssio n i t s e l f in curriculum le g is la t io n : (1) The p r o fe ssio n must p resen t a p ictu r e o f in te g r it y to d is p e l the in s e c u r ity o f the p u b lic (c ite d by tw o). (2) The p r o fe ssio n must be c a r e fu l not to do th in g s the le g is la t u r e w i l l f e e l i t must r e c t if y ( c it e d by tw o). (3) The p r o fe ssio n needs more sta tu r e b efore the l e g i s l a ture ( c it e d by tw o ). (4) There must be stro n g ed u ca tio n a l lea d e rsh ip stan d in g on p r in c ip le ( c it e d by three). (5) The p r o fe s s io n a l educator should be an exp ert and should be recogn ized and re sp ec te d as such ( c ite d by f i v e ) . (6) The p r o fe ssio n should p oin t out the e f f e c t s o f pending cu rr icu lum le g i s l a t i o n , in clu d in g cum ulative e f f e c t s , and the le g is la t u r e should be w illin g to l i s t e n ( c it e d by th r e e ). S ev era l o f the in te r v ie w ees commented on means by which th e p r o fe ssio n cou ld ach ieve g re a ter in flu e n c e in the le g is la t u r e . Nine o f them advocated a c lo s e r working r e la tio n s h ip between educators and t h e ir lo c a l rep resen ta t iv e s in the s t a t e le g is la t u r e , w ith educators and lo c a l r e p r e se n ta tiv e s working on the lo c a l le v e l. Seven s tr e s s e d the im portance o f g rea ter p o l i t i c a l a c t iv it y by ed u ca to rs. In summary, the primary su g g estio n fo r p r o fe s s io n a l o rg a n iza tio n s was th a t they u n ify th e ir e f f o r t s . The 284 primary su g g estio n for the p r o fe ssio n i t s e l f was th a t i t work more c lo s e ly w ith lo c a l l e g i s l a t i v e r e p r e se n ta tiv e s on the lo c a l l e v e l. C hapter Summary S ix ty -n in e le g a l requirem ents a f f e c t in g curriculum and in s tr u c tio n were found in the laws o f C a lifo r n ia . S ix te e n were s e le c te d by a jury a s b ein g p o s s ib le causes o f problems to sch o o l d i s t r i c t s , and n in e te e n o th ers were id e n t if ie d by ad m in istrators during in te rv ie w s as b ein g problems which were exp erien ced by sch o o l d i s t r i c t s . One p ro v isio n s e le c te d by the ju ry was found to be a problem to none o f the surveyed d i s t r i c t s ; h en ce, th ir ty -fo u r o f th e s ix ty -n in e requirem ents, or 4 9 .3 per cen t o f a l l le g is la t io n a f fe c t in g curriculum and in s tr u c tio n , had been exp erien ced as sou rces o f problems in the tw enty- seven d i s t r i c t s in v e s tig a te d . The percentage o f le g a l requirem ents which posed problems fo r d i s t r i c t s was q u ite uniform throughout the s ta te when analyzed in terms o f type o f d i s t r i c t - - i . e . , th ere were few d iffe r e n c e s among elem entary, high sc h o o l, and u n ifie d d i s t r i c t s . Southern C a lifo rn ia rep orted more problems than j the o th er two reg io n s o f the s t a t e , and la rg e d i s t r i c t s 2 8 5 encountered more problems than did sm all or m edium -sized d i s t r i c t s . Each requirem ent posed a p o ssib le problem to the d is t r ic t s to which i t a p p lied . The evidence in d ica ted th a t the number o f p o ssib le problems which developed in to a c tu a l problems was g rea ter in Southern C a lifo rn ia than in the other two region s o f the s t a t e . U n ified d is t r ic t s experienced a h igher proportion o f a c tu a l problems to p o ssib le problems than did elem entary or high sch ool d is t r i c t s . Large d i s t r ic t s experienced more problems than did sm all and m edium -sized d i s t r i c t s . Throughout the s ta te there was a p o s s ib ili t y o f 1,584 p o ssib le problem s. Of t h is number, 182, or 11.5 per c e n t, became a c tu a l prob lems to the d i s t r i c t s . There were 34 o f the 69 le g a l requirem ents which caused problems fo r sch o o l d i s t r i c t s . None o f th ese had crea ted problems to every d i s t r i c t . The d is t r ic t s v a ried in the number o f problems rep orted , from one to fo u rteen , the average b ein g 6 .7 problems per d i s t r i c t . The 34 le g a l requirem ents i d e n tif ie d as problems v a rie d w idely in the number o f tim es each was re p o rte d by d i s t r i c t r e p r e s e n ta tiv e s . The one c ite d most o fte n was , Education Code S ectio n 7604 which had caused problems to j 17 o f the 27 d i s t r i c t s surveyed. Although reasons g iv en fo r the fa c t that p a r tic u la r requirem ents had crea ted problems v a r ie d g r e a tly , as did the proposed s o lu tio n s to th e problem s, a common theme ran through th ose c it e d most fr e q u e n tly . The fo reig n language requirem ent con tain ed in Education Code S ection 7604 was o f g r e a te s t concern, the r e s u ltin g problems b ein g cen tered c h ie fly on money and p erso n n el. Proposed so lu tio n s ranged from in crea sed s t a te support to com plete rep ea l o f the law . Delay in r e c e iv in g t e s t r e s u lt s which made t h e ir use in the t o t a l ed u ca tio n a l program u n s a tis fa cto ry was the g r e a te s t problem posed by Education Code S ectio n 12822. Greater f l e x i b i l i t y in sch ed u lin g was * advocated as a s o lu tio n . Education Code S ectio n 7700 p resen ted a problem p rim a rily o f p rovid in g for th e educa tio n a l needs o f n on -college-b ou n d stu d en ts; i t was pro posed th a t requirem ents be made le s s s p e c if ic to allow g rea ter f l e x i b i l i t y in the t o t a l sc h o o l program. Responses by in te r v ie w e es to th e q u estio n s con cern in g curriculum le g is la t io n g e n e r a lly varied w id ely . On no s in g le q u estio n was th ere com plete agreem ent. N e v e r th e le ss, on some p o in ts th ere was a gen eral consensus th a t c e n tr a liz a tio n o f a u th o r ity in curriculum was 287 a d v isa b le only in so fa r as i t provided gen eral g o a ls , minimum stand ard s, and some degree o f uniform ity o f prac t i c e w ith in the s t a t e . P iece-m eal curriculum le g is la t io n was considered unw ise. Providing for in d iv id u a l d if f e r ences among stu d en ts through adjustm ent o f the curriculum i t was b e lie v e d , was b e st handled at the lo c a l le v e l. Many ad m in istrators thought th a t educators should be con s u lte d more freq u en tly when curriculum le g is la t io n is pending and th a t the p ro fessio n would have to become b e tte r organized and u n ifie d to be heard in the le g is la t iv e h a lls . The ex c e ssiv e number o f le g a l requirem ents was con sid ered a problem; y e t the b e l i e f was widespread th a t a trend i s d evelopin g toward even more curriculum le g is la t io n in the fu tu r e. CH APTER VI SU M M A R Y , SU M M A R Y O F FINDINGS, CONCLUSIONS, AND REC O M M EN D A TIO N S Summary The Problem I t was the purpose o f th is study to determine the le g a l requirements that p ertain to curriculum and in str u c tio n in C aliforn ia secondary and elementary sc h o o ls, and to a sc erta in which requirements are causing problems for school d i s t r i c t s . More s p e c i f i c a l l y , answers were sought to the follow in g q uestions: 1. What le g a l requirements a ffe c t curriculum and in str u c tio n as determined by the C aliforn ia Education Code? 2. What le g a l requirements a f f e c t curriculum and in str u c tio n as determined by the C aliforn ia A dm inistrative Code, T itle 5--Education? 3. What are the le g a l requirements concerning curriculum and in str u c tio n as determined by 288 the Attorney General rulings? 4. What are the le g a l requirements o f curriculum and in stru ctio n as determined by the C onstitu tio n o f C alifornia? 5. What are the le g a l requirements o f curriculum and in stru ctio n as determined by court d eci sions? 6. What problems are created by the le g a l require ments in in stru ction? 7. What problems are created by the le g a l require ments in curriculum? 8. What changes do d is t r ic t s want in the regula tion s regarding curriculum? 9. What changes do d is t r ic t s want in regulations regarding in stru ction? The Procedure The f i r s t step in finding answers to the foregoing questions was to review the lite r a tu r e dealing w ith school law, in order to provide a frame of reference and a back ground o f understanding o f the subsequent phases o f the study. Of p articu lar in te r e st in the lib rary search was lite r a tu r e pertaining to the le g a l foundation o f public 290 education and le g a l requirements a ffe c tin g education in general at the fe d e r a l, s t a t e , and lo c a l le v e ls , with s p e c ia l emphasis on C a lifo rn ia . The resume o f m aterials contained in the lite r a tu r e included (1) a review o f C aliforn ia Supreme Court d ecisio n s; (2) research stu d ie s; (3) causes o f curriculum le g is la t io n ; (4) j u d ic ia l con trol o f curriculum; (5) sta tu s stu d ie s o f s t a t e s , reg io n s, and the United S ta tes as a whole; and (6) a u th o rita tiv e view points o f p r o fessio n a l educators concerning curriculum le g is la t io n . In order to provide a more complete picture o f what i s taking place in C aliforn ia curricu lar le g is la t io n , a complete h is t o r ic a l study o f C aliforn ia le g is la t io n in curriculum and in str u c tio n was conducted and summarized. This included the follow ing: an exten sive examination of the sta tu te s to determine the requirements that l e g i s l a tors had made in to laws, an examination o f the Attorney G eneral's opinions to provide the in terp reta tio n s o f the le g is la t iv e enactm ents, and a review o f the a ction o f the courts as they r e la te d to curriculum and in stru ctio n because they revealed to some exten t how school d is t r ic t s were carrying out the p rovision s of curriculum le g is la t io n . 291 Following the h is t o r ic a l study, a com pilation was made o f a l l provisions in the 1961 Education Code and the Adm inistrative Code, T itle 5--Education that a ffe c t curriculum and in stru ctio n . From th is com pilation only those that were mandatory or p ro h ib itiv e in nature were se le c te d for use in th is in v e stig a tio n . Permissive le g is la tio n was excluded because school d i s t r ic t s are not re quired to carry out the provisions o f le g is la t io n o f th is nature. Another c r ite r io n for the in clu sio n of a le g i s la tiv e provision was that i t pertain to the ty p ic a l stu dent; thus, any reference to s p e c ia l programs was a ls o excluded from consideration here. Upon completion o f the com pilation i t was necessary to v a lid a te the provisions se le c te d . The v a lid a tio n o f items was done by members o f a jury impaneled for th is task. The jury was composed of twelve members o f the Committee on the R evision o f D iv i sion Seven o f the Education Code. Jurors were asked to check a l l items in the com pilation that they f e l t might create problems for school d i s t r i c t s . From the r e su lts o f the jury s e le c tio n s , an in te r view guide was developed. The jury s e le c te d six te e n leg a l requirements that they thought were important p o te n tia l sources of d if f ic u lt y to school d i s t r i c t s . These became the six teen b asic items of the instrument. Also contained in the interview guide was a sectio n that allowed the respondent to sta te what ad d itio n a l le g is la t iv e enactments pertaining to curriculum and in stru ctio n had created prob lems for t h e ir d i s t r i c t s . The third and fin a l se c tio n o f the interview guide was composed o f seven general ques tio n s designed to e l i c i t the views o f adm inistrators con cerning curriculum le g is la t io n as i t a f fe c t s the sch ools. The case study method was se le c te d as the most su ita b le method of adm inistering the guide, sin ce i t was thought that th is approach would give greater depth to the findings and would insure greater accuracy o f response than is p o ssib le w ith other methods. In order to obtain a rep resen tative sampling, the sta te o f C alifornia was divided in to three geographic regions--N orthern, C entral, and Southern. From each region , three types o f school d is t r ic t s were chosen--three u n ifie d d i s t r i c t s , three elementary d i s t r i c t s , and three high school d i s t r i c t s . Each of th ese three co n sisted o f schools o f a d iffe r e n t s iz e - - a sm all, a medium, and a large d is t r ic t o f the designated type. This basis o f s e le c tio n thus provided nine d is t r ic t s to be interview ed w ithin each geographic 293 region o f the s t a t e . Under the sponsorship o f the C alifornia A ssociation o f School A dm inistrators, a le t t e r was sent to the superin tendent o f each o f the twenty-seven se le c te d d is t r ic t s requesting h is p a rticip a tio n in the study. A second le t t e r esta b lish ed the date and time for the interview . A l i s t o f the six te e n le g a l requirements a ffe c tin g curricu lum and in stru ctio n was sent to each prospective p a r t ic i pant in advance o f the interview . Interviews varied in length and in the number of persons who p a rticip a ted . A ll d is t r ic t s were pleased to respond to the req u est, and a l l remarked that i t had been a worthwhile experience. Summary o f the Findings The findings are summarized here according to the th reefo ld nature o f the inquiry: (1) le g is la tio n which caused problems for the d i s t r i c t s , (2) recommendations for the so lu tio n o f problems, and (3) the views o f the adm inistrator-respondents concerning cu rricu lar l e g i s l a tio n in C aliforn ia. 294 Code S ectio n s That Caused Problems Sixteen o f six ty -n in e s p e c ific le g a l requirements contained in C alifornia Education Code and in the Adminis tr a tiv e Code, T itle 5 --Education, were chosen by the jury as touching upon important matters that might create prob lems for school d is t r i c t s . In ad dition to these six te e n requirements, nineteen others were id e n tifie d by school d is t r ic t adm inistrators as having created a ctu a l problems for the d is t r i c t s . This y ield ed a to ta l o f t h ir t y - f iv e le g a l requirements which p ossib ly could, or a ctu a lly did, cause problems for C alifornia school d is t r ic t s . The Code se c tio n that was reported to have created the g rea test number of problems was Section 7604, which prescribed the elementary course o f study. This was reportedly a problem in seventeen o f the twenty-seven d is t r ic t s in v estig a ted . In second place was Section 12822, which was concerned with a state-w id e te s tin g pro gram; th is had created problems in f ift e e n o f the d is t r i c t s . Section 7700 pertained to the secondary course o f study, and was a problem for th irteen o f the d is t r i c t s . Prescribed in stru ctio n in manners and morals and in the e f f e c t s o f a lco h o l and n arcotics was stated in Section l 7852, a se ctio n that created problems for eleven d is t r ic t s .j 295 S ection 8160, which d ea lt with the required amount o f time to be spent in p hysical education in str u c tio n , created problems for eleven d is t r i c t s . These were the major problem -sections id e n tifie d in the study. Of le s s sig n ific a n c e , but mentioned at le a s t fiv e time each were the follow in g le g a l requirements: Educa tio n Code Section 7551, pertain in g to the enforcement o f the required course o f study and use o f textbooks by the governing board; Adm inistrative Code Section 102, which e s ta b lish e s graduation requirements from high school; and Education Code Section s 5206 (observance of Susan B. Anthony Day), 5205 (observance o f Conservation, Bird, and Arbor Day), 7605 (minimum time requirements for cer ta in elementary co u rses), 7903 (p rereq u isites for advanced courses in so c io lo g y , p o l i t i c a l sc ien ce , economics, foreign trad e, and foreign a f f a i r s ) , 8159 (time require ments in elementary p h ysical education^ 5952 (continuation s c h o o ls ), 5211 (required d aily p a tr io tic exercises^ 5203 (observance o f Lincoln and Washington b irth d ays), and 8105 (compulsory automobile driver ed u cation ). 296 Recommendations Offered by Administrators The recommendations made by the adm inistrators for p o ssib le so lu tio n s to the problems caused by curriculum le g is la t io n were many and varied. The follow ing sugges tio n s were those offered most frequently for the r e so lu tio n o f d if f ic u lt ie s : 1. In stru ction in public sa fe ty and accident pre vention should be in cid en ta l and should not be offered as a separate course. 2. The s p e c ific grade le v e l designations for spe c i f i c subjects in the elementary course o f study should be elim inated. 3. The elementary foreign language requirement should be made perm issive, and adequate s ta te financing should be made a v a ila b le . 4. The observance o f Conservation, Bird and Arbor Day and Susan B. Anthony Day should be elim inated. 5. L incoln’s and Washington’s birthdays should be honored for the contributions made by these great men, and should not be made school h o lid ays. 6. The textbook s e le c tio n procedure should be changed, and d is t r ic t s should be allowed to s e le c t te x ts from a m u ltip le l i s t . 7. The state-w id e t e s t in g program should be financed more adequately, and greater f l e x i b i l i t y provided in the choice o f types o f t e s t s , and the scheduling o f t e s t s e s s io n s . 8. Greater f l e x i b i l i t y should be provided in the scheduling o f p h y sica l education on the jun ior and sen ior high school le v e ls by d e le tin g the time requirements. 9. Requirements for graduation from secondary schools should be made more gen eral, and lo c a l d is t r ic t s should have greater power in determining graduation re quirements. 1 * * 10. Many se c tio n s need c la r ify in g . 11. Some se c tio n s could w e ll be d eleted . The Views o f Adm inistrators Concerning Curriculum L e g isla tio n in General Answers to seven general q u estion s, as b r ie fly summarized, were as follow s: 1. Adm inistrators were gen erally agreed that s ta te con tro ls should be o f a general nature and should provide g u id e lin e s, minimum requirem ents, and some degree o f uniform ity. 298 2. It was thought that piecemeal le g is la t io n was unwise, and that order could be brought to certa in confus ing or c o n flic tin g curriculum laws through study by p rofes sio n a l educators. 3. The adm inistrators thought that lo c a l school d is t r ic t s were in a b ette r p o sitio n to provide su ita b le programs o f in stru ctio n for in d iv id u a l students than was the s ta te . 4. The le g isla tu r e should not be involved with the s p e c ific s of curriculum, and p ro fessio n a l educators should be consulted on cu rricu lar le g is la t io n . Educators should become b ette r organized and more u n ifie d i f th e ir voice is to be heard. 5. The large number o f e x is tin g le g a l requirements a ffe c tin g curriculum and in str u c tio n was p a rticu la rly inappropriate because i t reduced the f l e x i b i l i t y with which the curriculum could be planned to provide for lo c a l needs and the in d ivid u al d ifferen ces in stud ents. 6. A ll adm inistrators predicted that the present trend toward increased cu rricu lar le g is la t io n would con tinue in the future. 7. P rofession al organizations should unify and work more c lo s e ly w ith le g is la t iv e rep resen tatives on the ( 299 lo c a l le v e l. Conclusions The follow in g conclusions were drawn from the survey fin d in g s, from the review o f lite r a tu r e , and from the h is t o r ic a l study o f the s ta tu te s , court d e c isio n s, and Attorney General r u lin g s. 1. Education is a sta te function , and the sta te le g is la tu r e has the le g a l righ t to enact cur r ic u la r laws or to delegate th is authority to the lo c a l school d i s t r i c t s . 2. The s ta te le g is la tu r e has entered the realm o f curriculum p rescrip tion to a greater extent than is necessary or d esira b le. 3. On the b a sis o f present fin d in g s, i t may be concluded that there is lik e ly to continue to be a c o n flic t between the le g is la t u r e 's concept o f i t s ro le in curriculum p rescrip tion and the education p ro fessio n 's concept o f curriculum development as a p ro fessio n a l function based on lo c a l r e s p o n s ib ility and con trol. 4. The great number o f curriculum regu lation s r e s t r ic t s the f l e x i b i l i t y o f school d is t r ic t s i 300 in the development o f good edu cational programs for in d iv id u a l stu d en ts. 5. The ambiguous wording o f many o f the curriculum laws cr ea tes confusion and lack o f uniform ity among d i s t r i c t s in th e ir e f f o r t s to achieve compliance and enforcement. Recommendations The follow in g recommendations are derived from the find in gs and conclusions o f the in v e s tig a tio n . 1. The mandatory foreign language requirement in the elementary course o f study (Section 7604) should be made a perm issive requirement. “ 2. The p rovision s o f the Education Code that are ob so lete should be d e le te d from the Education Code. 3. Education Code p rovision s that are ambiguous and d i f f i c u l t to adm inister or execute should be rew ritten so that they w i l l be e a s ily under stood, thereby providing for more uniform a p p lica tio n o f the p ro v isio n s throughout the s t a t e . 4. The advice o f ed u cation al organ ization s should 301 be a c tiv e ly sought by the le g is la t o r s in the development o f curriculum le g is la t io n . 5. Curriculum le g is la t io n should be more general in nature to allow for f l e x i b i l i t y in curriculum development at the lo c a l le v e l. Suggestions for Further Study 1. There is need for a study o f the ways in which d i s t r ic t s are m eeting the mandatory and pro h ib itiv e requirements concerning curriculum and in str u c tio n , as found in the Education Code; in the A dm inistrative Code, T itle F ive-- Education; and in the C on stitu tion . 2. There i s a lso need for a stu d y-to determine how w e ll informed adm inistrators and fa c u ltie s are in regard to the le g a l requirements con cerning curriculum and in str u c tio n , as found in the Education Code; in the A dm inistrative Code, T itle Five--Education; and in the C onsti tu tio n . B I B L I O G R A P H Y I BIBLIOGRAPHY Books Bagley, William C ., and George C. Kyte. The C alifornia Curriculum Study. Berkeley: U niversity o f C alifornia Printing O ffic e , 1926. Black, Henry Campbell. Black's Law D iction ary. 3rd ed. S t. Paul: West Publishing Co., 1933. Flanders, Jesse K. L e g isla tiv e Control of the E le mentary Curriculum. 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S t a t u t e s . 1941. 1 3 1 j____________S t a t u t e s . 1943. 1 3 2 ' __________. S t a t u t e s . 1945. 1 3 3 ^ ___________ S t a t u t e s , . 1947. 134>_______ s t a t u t e s . 1949. i o c . S t a t u t e s . 1951. 136. 137. 138. 139. 140. 141. 142. 143. 144. 145. 146. 313 C a lifo r n ia . S ta t u t e s . 1953. ________ . S ta tu te s. 1955. S ta tu te s. 1957. . S ta tu te s. 1959. United S ta te s . C onstitu tion o f the United S t a t e s , in Convention, September 17, 1787. ________. D eclaration o f Independence, Adopted in Congress, July 2 , Signed July 4, 1776. ________. D eclaration o f R ights in Congress, at P hilad elp h ia, October 14, 1774. U npublished M a te ria l Behrens, Henry W illiam . "C alifornia Supreme Court D ecisions from 1900 to 1950 w ith Respect to Public School A dm inistration." Unpublished M aster's t h e s is , U n iv ersity of Southern C a lifo rn ia , August 1953. Blome, Harold P. "An Evaluation of L e g isla tio n R ela tiv e to Elementary Textbooks and Courses o f Study." Unpublished d octoral d is s e r ta tio n , U n iversity o f C a lifo r n ia , Berkeley, 1939. Bratton, J. Wesley. "A Study to Determine the Extent and Nature of Educational L e g isla tio n Obtained through I n it ia t iv e and Referendum in the United S ta tes with S p e cia l A p p lication to C a lifo rn ia ." Unpublished d octoral d is s e r ta tio n , U n iversity o f Southern C a lifo r n ia , A pril 1951. Brauer, Walter Louis. "Trends in S ta te L e g isla tio n A ffec tin g the Curriculum o f the Public S ch o o ls." Unpublished d octoral d is s e r t a t io n , New York U n iv ersity , 1955. 314 147. 148. 149. 150. 151. 152. 153. Crossan, Robert D. "L egislation Proposed to the S tate L egislatu re o f C alifornia R elative to Public Education from 1941 to 1943." Unpublished d octoral d is s e r ta tio n , U niversity o f Southern C a lifo rn ia , June 1955. Dickinson, Lawton W illiam. "The Status o f L eg isla tio n A ffectin g the Public School C urricula." Unpublished M aster's t h e s is , U niversity o f Southern C a lifo rn ia , November 1933. Doss, Jesse P. "Tendencies Toward C entralization and D ecen tralization of Control in Education A dm inistration in C alifornia from 1900 to 1950." Unpublished doctoral d is s e r ta tio n , U niversity o f Southern C a lifo rn ia , 1951. Ellerman, Raymond Frederick. "An H isto r ic a l Study o f C alifornia Supreme Court D ecisions from 1850 to 1950 w ith Respect to Public School Adminis tr a tio n ." Unpublished M aster's t h e s is , Univer s it y o f Southern C a lifo rn ia , 1955. F ish er, E lfreda. "History o f Federal L eg isla tio n R elating to General Elementary and Secondary Education, 1918-1936," Unpublished M aster's t h e s is , U niversity of Southern C aliforn ia, 1936. F letch er, Raymond. "The Role o f the State in the Adm inistration of Elementary Education." Unpublished doctoral d is s e r ta tio n , U niversity o f Texas, 1944. Gish, Ira M . "A Review o f S tate L egislation Per ta in in g to the Secondary School Curriculum in the S ta tes Comprising the Southern A ssociation o f C olleges and Secondary Schools, and an A nalysis and Comparison w ith Sim ilar Data o f the S ta tes Comprising the North-Central Asso c ia tio n ." Unpublished doctoral d is s e r ta tio n , U n iversity o f Nebraska, 1940. 315 154. 155. 156. 157. 158. 159. 160. 161. 162. Gordy, Jay Co. f,Minimum S tate Requirement in Secondary School Curricula as Revealed by S tate Codes and State R egulations." Unpublished M aster's t h e s is , U niversity o f Southern C a li fo rn ia , M ay 1927. Hearn, E dell M idgett. "Public Education Changes through L eg isla tio n in Tennessee, 1935-1959." Unpublished doctoral d is s e r ta tio n , U niversity o f Tennessee, 1959. Hunt, Rolfe Lanier. "A Study of Factors Influencing the Public School Curriculum o f Kentucky." Unpublished doctoral d is s e r ta tio n , George Peabody College for Teachers, 1937. Lubbers, Egbert. "Statutory Control over the Curriculum o f the American Common School from 1890 through 1943." Unpublished doctoral d is s e r ta tio n , U niversity o f Chicago, 1946. McClure, Major L. " L egislative Controls over the — Public School Curriculum." Unpublished doctoral d is s e r ta tio n , U niversity of Oklahoma, 1957. Musmanno, Neal V ictor. "Legal P rin cip les and Issues Involved in L itig a tio n Pertaining to the Curric ulum or Courses o f Study in the Public Schools o f America sin ce 1845." Unpublished doctoral d is s e r ta tio n , U niversity of Pittsburgh, 1958. Nixon, 0. Floyd. "A C r itic a l Study of Curricular L e g isla tio n w ith S p ecia l Reference to Ohio from 1803 to 1931." Unpublished d octoral d is s e r ta tio n , Ohio State U n iv ersity , 1932. P lisch k e, John Ruff. " L egislative Control o f the Elementary Curriculum from 1941 to 1950." Unpublished doctoral d is s e r ta tio n , U niversity o f Pittsburgh, 1954. Roberts, Ray Jack. "Educational O bjectives and Curriculum L e g isla tio n in Texas, 1870-1957; L e g isla tio n in Texas, 1870-1957." Unpublished d octoral d is s e r ta tio n , U niversity o f Texas, 1960. 316 163. 164. 165. 166. 167. 168. 169. 170. S alisbury, E. G. "The Legal Provisions for Health E ducation.” Unpublished doctoral d is s e r ta tio n , George Washington U niversity, 1920. S c o tt, Alton E. ”An A nalysis o f Obsolescence in the C alifornia Education Code." Unpublished doctoral d is s e r ta tio n , U niversity o f Southern C aliforn ia, June 1955. Shaner, James D. "Recent L e g isla tiv e Controls o f the Elementary Curriculum.” Unpublished doctoral d is s e r ta tio n , U niversity o f P ittsburgh, 1942. Smith, Thomas Ole. " L egislative Control o f the Public School Curriculum." Unpublished doctoral d is s e r ta tio n , U niversity o f Southern C alifo rn ia , June 1948. Towle, Mary Eva. "A Survey o f the R elationship between State Control o f Public School Curricu- lums, as Revealed by School Codes, and State Educational Standards." Unpublished M aster's t h e s is , U niversity o f Southern C aliforn ia, August 1933. Van Den Brink, John J. "A Review o f S tate L e g isla tio n Pertaining to the Secondary School Curric ulum in the S tates Comprising the North-Central A ssociation o f C olleges and Secondary Schools." Unpublished doctoral d isse r ta tio n , U niversity o f Nebraska, 1939. Webster, Charles W . "C onflicting and Variable In terp retation s of the C alifornia State Educa tio n Code.” Unpublished doctoral d is s e r ta tio n , U niversity o f Southern C alifo rn ia , February 1952. Yearbooks American Council on E ducation. The Tenth Yearbook o f School Law, 1942. E dited by M. M. Chambers. W ashington, D.C.: The C ouncil, 1942. 317 171. 172. 173. 174. 175. Bolmeier, E. C. M Is School Law in Tune w ith the Times?" The Yearbook of School Law, 1962. Edited by Lee 0. Garber. (Adapted from a pre sen tation to the American A ssociation o f School A dm inistrators, S t. Louis, March 13, 1961.) D anville, 111.: The In tersta te Printers and P ub lishers, In c., 1962, pp. 185-198. F errier, Martin K. "Judicial Control o f the School Program," The Yearbook o f School Law, 1956. Edited by Lee 0. Garber. D a n v ille, 111.: The In tersta te Printers and P ub lishers, I n c ., 1959, pp. 81-108. Garber, Lee 0. "School Law in R etrosp ective," The Yearbook o f School Law, 1959. Edited by Lee 0. Garber. D a n v ille, 111.: The Inter s ta te P rinters and P ub lishers, In c ., 1959, pp. 157-171. Good, Carter V. ’’ Doctoral D isse rta tio n s in the F ield of Educational Law, 1918 through 1935," The F ifth Yearbook o f School Law, 1937. Edited by M . M . Chambers. Washington, D.C.: American Council on Education, 1937, pp. 138-144. The Yearbook o f School Law, 1962. Edited by Lee 0. Garber. D a n v ille, 111.: The In tersta te P rin t ers and P u b lishers, In c ., 1962. A P P E N D I C E S APPENDIX A C O R R E SPO N D EN C E REG ARDING SPONSORSHIP O F STUDY CALIFORNIA ASSOCIATION O F SC H O O L ADM INISTRATORS 1705 Murchison Drive . Burlingame, C a lifo rn ia A ugust 2 , 1962 H r. D ale C. P a u l and H r. R o b ert S eato n 4362 Dean D rive V e n tu ra , C a l if o r n ia G entlem en: Y ours o f J u ly 11 re c e iv e d and c o n te n ts n o te d . W e had e x p e c te d to c o n s id e r y o u r r e q u e s t f o r s p o n s o rs h ip a t th e m e e tin g o f th e B oard o f G overnors on J u ly 2 2 . T h is d id n o t w ork o u t b e c a u se o f a v e ry heavy agenda o v e r w hich t h i s o f f i c e and th e B oard o f G overnors h ad no c o n t r o l . The B oard d id r e f e r th e m a tte r to th e R e se a rc h C om m ittee, chairm an ed by P r e s id e n t E le c t D r. Jam es D ent w ith f u l l power t o a c t . W e have s u b s e q u e n tly t h i s week fo rw ard ed to th e members o f th e com m ittee c o p ie s o f th e m a te r ia ls w hich we h ad r e c e iv e d . W e have ask ed th e com m ittee to re v ie w t h i s as q u ic k ly a s p o s s i b le (v a c a tio n s may i n t e r f e r e ) so t h a t we c a n make an e a r l y re s p o n s e t o y o u r in q u i r y . B ecause th e P r e s id e n t o f o u r A s s o c ia tio n , D r. R ic h a rd C low es, h a s r e s p o n s i b i l i t i e s r e l a t e d t o t h i s s p h e re o f a c t i v i t y a s A s s o c ia te S ta te Su p e r in te n d e n t o f P u b lic I n s t r u c t i o n , we h ave a l s o ask ed him t o g iv e t h i s h i s c o n s id e r a tio n . In fo rm a l r e a c tio n s r e c e iv e d t o d a te i n d i c a t e a f a v o r a b le i n c l i n a t i o n tow ard y o u r stu d y and s p o n s o rs h ip o f same by CASA. F in a l d e c is io n on t h i s m a tte r to g e th e r w ith any s u g g e s tio n s t h a t may be fo rth c o m in g from th e com m ittee w i l l be fo rw ard ed t o you j u s t a s q u ic k ly a s th e in fo rm a tio n i s a v a i la b l e to u s . I t r u s t t h a t we have n o t d e la y e d you and y o u r p ro g re s s tow ard th e ach iev em en t o f y o u r g o a l b e c a u se o f t h i s i n t e r v a l . S in c e re ly y o u rs , (S ig n e d ) Jam es H* C orson E x e c u tiv e S e c re ta ry JHC/mc c c : Jam es D ent, R ic h a rd C low es, L loyd N elson 320 321 1052 B e lf a s t Lane V e n tu ra , C a l if o r n ia November 2 8 , 1962 Dr. James H. Corson Executive Secretary C a l if o r n ia A s s o c ia tio n o f School A d m in is tra to rs 1705 M urchison D rive B u rlin g am e, C a l if o r n ia D ear D r. C orson: Our com m ittee h a s g iv e n u s p e rm is s io n to b e g in i n t e r v ie w in g to d e te rm in e problem s c r e a te d f o r s c h o o l d i s t r i c t s by c u rric u lu m l e g i s l a t i o n . He know re sp o n se to ou r r e q u e s t to in te r v ie w w i l l be f a r g r e a t e r i f th e p r o s p e c tiv e i n t e r v iew ees r e c e iv e a l e t t e r from you t e l l i n g them o f CASA's i n t e r e s t in th e s tu d y . W e a r e e n c lo s in g a s u g g e s te d l e t t e r w hich you sh o u ld f e e l f r e e to change in any way. W e p la n to do a g r e a t d e a l o f o u r in te rv ie w in g d u rin g C h ristm as v a c a tio n so we hope you w i l l be a b le to g e t th e l e t t e r s o u t in th e v e ry n e a r f u t u r e . The names o f th e a d d re s s e e s a r e ta k e n from th e 1961-62 S ta te D ir e c to r y . I f you have a more r e c e n t one you may be a b le t o b r in g th e l i s t up to d a t e . Would you p le a s e l e t us know when y o u r l e t t e r s go o u t so we w i l l be a b le to fo llo w i t up im m e d ia te ly . Thank you f o r y o u r i n t e r e s t and h e lp . R e s p e c tf u lly y o u rs , D ale C. P au l DCP:vi Robert L. Seaton CALIFORNIA ASSOCIATION O F SC H O O L ADM INISTRATORS 1705 Murchison D rive . Burlingam e, C a lifo rn ia Septem ber 13, 1962 M r. R o b ert S e a to n and M r. D ale C. Paul 4362 Dean D riv e V e n tu ra , C a l if o r n ia G entlem en: T o u rs o f S eptem ber 11 was v ery in fo rm a tiv e and much a p p re c i a t e d . W e a r e v e ry a p p r e c ia ti v e o f y o u r appro ach to t h i s m ost im p o rta n t s tu d y . The s u g g e s tio n s made by our com m ittee and th e s u g g e s tio n t h a t you c o n fe r w ith D r. Gordon who has o n ly r e c e n tly r e tu r n e d to t h i s c o u n try , a r e b o th d e s ig n e d to be h e lp f u l and n o t t o be stu m b lin g b lo c k s in any w ay. He re c o g n iz e t h a t you do n o t w ant to be d e la y e d in moving fo rw a rd w ith t h i s s tu d y . In f a c t , we a r e q u i t e an x io u s to s e e i t co m p leted a t an e a r ly d a t e . The co n sen su s o f o u r com m ittee was th a t th e stu d y be sp o n so re d and t h i s h a s been th e recom m endation and w i l l be th e a c tio n o f o u r a s s o c i a t i o n . The s u g g e s tio n s , a s i n d i c a te d above, a r e d e sig n e d to be h e lp f u l and a r e s u g g e s tio n s o n ly . W e do a p p r e c ia te th e f a c t t h a t i t i s p o s s ib le f o r you t o meet w ith D r. Gordon in Los A n g eles, th u s a v o id in g th e n e c e s s ity o f an e x t r a t r i p f o r e i t h e r you o r him . W e t r u s t t h a t th e c o n fe re n c e w i l l be o f f u r t h e r a s s is ta n c e to y ou as you p u rsu e y o u r o b je c tiv e . I w as happy t o c h a t w ith D r. N elso n ab o u t th e p ro g re s s you w ere m aking on th e o c c a s io n o f h i s r e c e n t v i s i t to B u rlin g am e. P le a s e be a s s u r e d t h a t w h eth er you d e c id e upon an e x te n s iv e q u e s tio n n a ir e ap p ro a c h o r some o th e r m ethod such a s th e c a s e stu d y a p p ro a c h , we w i l l be i n t e r e s t e d in w h atev er a s s i s t a n c e may be c o n s id e re d a p p r o p r ia te an d m u tu a lly a d v a n ta g e o u s . S in c e r e ly y o u rs , (S ig n e d ) Jam es H. C orson E x e c u tiv e S e c r e ta r y c c : D r. G ordon, D r. C low es, D r. N elson, Jam es Dent 322 APPENDIX B C O R R ESPO N D EN C E W ITH JURO RS 1052 B e l f a s t Lane V e n tu ra , C a l if o r n ia November 15, 1962 At th e O c to b e r 1 s t m e e tin g o f th e C om m ittee f o r th e R e v is io n o f D iv is io n Seven o f th e E d u c a tio n C ode, we p r e s e n te d a b r i e f o u t l i n e o f o u r d o c to r a l s tu d y , "L eg al R eq u irem en ts A f f e c tin g C u rric u lu m and I n s t r u c t i o n i n C a l i f o r n i a . " He a r e p ro u d t h a t th e stu d y w i l l be sp o n so re d by th e C a l if o r n ia A s s o c ia tio n o f S ch o o l A d m in is tr a to r s and i s o f i n t e r e s t t o th e CTA R e se a rc h D iv is io n . One facet of our study involves a compilation of all manda tory and prohibitive provisions in the Education Code, Title V, and other codes. This will be used as part of an interview guide in school districts throughout California. We were pleased and honored to have you volunteer to review these provisions for us. In re v ie w in g th e e n c lo s e d c o m p ila tio n , w ould you p le a s e : 1 . P la c e a n ASTERISK i n f r o n t o f th e num bers o f th e f i v e to t e n p r o v is io n s you f e e l a r e th e MOST IMPORTANT i n s h a p in g c u rric u lu m i n C a l i f o r n i a . 2 . CIRCLE th e num bers o f th e f i v e t o te n p r o v is io n s you f e e l a r e th e LEAST IMPORTANT. 3 . CROSS OUT any p r o v is io n s you f e e l sh o u ld n o t be in th e c o m p ila tio n . 4 . I n d ic a te any p r o v is io n s t h a t s h o u ld be in c lu d e d b u t a r e n o t in th e c o m p ila tio n o r any o th e r s u g g e s tio n s by m a rg in a l n o te s o r n o te s on th e back s o f p a g e s . You w i l l note t h a t we have n o t in c lu d e d l e g a l p r o v is io n s d e a lin g w ith s p e c i a l e d u c a tio n a l p ro g ram s n o r p e rm is s iv e p r o v i s i o n s . T h is i s b e c a u se th e s tu d y i s d e lim ite d to c o n c e rn o n ly l e g a l re q u ire m e n ts a f f e c t i n g w hat m ig h t be th o u g h t o f a s " o r d in a r y " o r "norm al" c l a s s e s . 324 325 - 2 - A r e t u r n en v e lo p e i s e n c lo s e d f o r y o u r c o n v e n ie n c e . W e hope we may have y o u r rev ie w o f th e c o m p ila tio n so o n . W e w ant you to know we a r e d e e p ly a p p r e c ia tiv e o f y o u r h e l p . R e s p e c tf u lly y o u rs , R o b e rt L. S e a to n D ale C. P au l APPENDIX C LETTER O F TRANSMITTAL, A N D C O R R ESPO N D EN C E REGARDING PARTICIPATION IN STU D Y CALIFORNIA ASSOCIATION O F SC H O O L ADM INISTRATORS 1705 Murchison D rive . Burlingame, C a lifo rn ia November 2 9 , 1962 M r. D ale C. P au l and M r. R o b ert L. S e a to n 1052 B e lf a s t Lane V e n tu ra , C a l if o r n ia G entlem en: T ours o f November 28 r e c e iv e d . W e have approved th e l e t t e r w hich w i l l be fo rw ard ed o v e r th e s ig n a t u r e o f P r e s id e n t C low es. B ecause o f th e s m a ll number o f l e t t e r s , we w i l l p re p a re them and fo rw ard them by December 4 , 1962. C o n g ra tu la tio n s on y o u r p r o g r e s s . C o n ta c t me a t th e C onference in San D iego i f th e r e a r e any q u e s tio n s . S in c e re ly y o u rs , (S ig n e d ) Jam es H. C orson E x e c u tiv e S e c re ta ry JHC:jd 327 Ja m es H. Corson Executive S ecretary California Association of School Administrators 1 7 0 5 Murchison Drive • Burlingame, California • OXford 7 - 2 4 1 0 D ecem ber 3 , 1963 The C alifo rn ia A sso c ia tio n of School A dm inistrators is sp onsoring a study to determ ine how le g a l req u irem en ts a ffe c t curriculum an d in stru c tio n in the p u b lic sc h o o ls of C a lifo rn ia . We a re in te re s te d in problem s c re a te d for sch o o l d is tric ts by th e s e requirem ents an d w hat su g g e s tio n s th ey hav e for th e ir so lu tio n . C ertain sc h o o l d is tric ts in n o rth ern , c e n tra l and so u th ern C alifo rn ia have b e en c h o sen on th e b a s is of siz e and type to p a rtic ip a te in th is study a s re p re se n ta tiv e of sim ilar d is tric ts throughout the s ta te . In a few d ay s you w ill re c e iv e a le tte r from th e au th o rs of the stu d y , M r. Robert L. S eaton and M r. D ale C . P a u l, ask in g for your p a rtic ip a tio n and se ttin g a te n ta tiv e a p p o in t m ent to in terv iew you or the p e rso n in your d is tric t m ost co n cern ed w ith curriculum and in stru c tio n . W e hope you w ill find it p o s s ib le to m eet w ith them . Your c o o p eratio n w ill be g re a tly a p p re c ia te d and w ill help g iv e re a l v a lu e an d m eaning to a stu d y we fe e l is of in te re s t and im p o rtan ce to a ll C alifo rn ia sch o o l a d m in istra to rs. S incerely y o u rs, Richard M . C low es P resid en t R M C A c APPENDIX D C O R R E SPO N D EN C E REG ARDING INTERVIEW S W ITH RESPONDENTS 1052 B e l f a s t Lane V e n tu ra , C a l if o r n ia December 14, 1962 D r. A l. R o b in so n , A s s is t a n t S u p e rin te n d e n t O xnard E lem en tary S chool D i s t r i c t 255 Palm D riv e O xnard, C a l if o r n ia Dear Dr. Robinson: A few days ago you re c e iv e d a l e t t e r from D r. R ic h a rd C low es, P r e s id e n t o f th e C a l if o r n ia A s s o c ia tio n o f S chool A d m in is tr a to r s , d e s c r ib in g o u r s tu d y o f th e l e g a l re q u ire m e n ts a f f e c t i n g c u rric u lu m and i n s t r u c t i o n i n C a l i f o r n i a . As he s t a t e d , y o u r d i s t r i c t h a s b een ch o sen a s r e p r e s e n t a tiv e o f i t s ty p e , s i z e and g e o g ra p h ic lo c a t i o n ; and we e a r n e s t ly hope you w i l l be a b le to p a r t i c i p a t e in th e s tu d y . I f i t m eets w ith y o u r a p p ro v a l, I w ould l i k e to in te r v ie w you o r th e member o f y o u r staff m ost d i r e c t l y c o n ce rn ed w ith c u rric u lu m and i n s t r u c t i o n on W ednesday, Ja n u a ry 9, in th e m o rn in g . The in te r v ie w sh o u ld ta k e a b o u t an h o u r. E n clo sed you w i l l f in d a c o m p ila tio n o f th e le g a l re q u ire m e n ts to s e rv e a s a g u id e f o r th e in te r v ie w . W e a r e co n c e rn e d w ith any prob lem s c r e a te d f o r y o u r d i s t r i c t by th e s e re q u ire m e n ts and y o u r id e a s on s o lv in g th e p ro b lem . A lso e n c lo s e d i s a p o s tc a r d on w hich you may i n d i c a t e i f th e tim e f o r th e in te r v ie w i s a c c e p ta b le , whom I w i l l in te r v ie w and th e tim e t h a t w ould be b e s t . May I u rg e t h a t you r e t u r n th e p o s tc a r d im m ed iately so I w i l l be a b le to p la n a p p r o p r ia te ly . Thank you f o r y o u r c o o p e r a tio n . R e s p e c tf u lly , Dale C. Paul DCP:vi E n d s . 330 331 RETU R N PO STC A R D E N C LO SU R E Tou may in te r v ie w me on D ec. 26 a t o 'c lo c k . Tou may in te r v ie w on Name D ec. 2 6 th . The d a te d e s ig n a te d i s n o t s a t i s f a c t o r y . Tou may in te r v ie w me on a t o 'c lo c k . Tou may in te r v ie w on Name a t o 'c lo c k . D ate S ig n ed D i s t r i c t 332 1052 B e lf a s t Lane V e n tu ra , C a l if o r n ia Ja n u a ry 14, 1963 D r. A lv in R obinson, A s s is t a n t S u p e rin te n d e n t Oxnard E lem en tary School D i s t r i c t 255 Palm D rive O xnard, C a l if o r n ia D ear D r. R obinson: I w ant to th a n k you f o r l e t t i n g me in te r v ie w you r e c e n tly c o n c e rn in g problem s c r e a te d f o r y o u r d i s t r i c t by le g a l r e q u ir e m ents a f f e c t i n g c u rric u lu m in C a l if o r n ia . Your c o o p e ra tio n h a s g r e a t l y enhanced th e v a lu e o f t h i s s tu d y to o u r p r o f e s s io n , and i t i s d e e p ly a p p r e c ia te d . A gain, my s in c e r e th a n k s . D ale C. P au l DCP:vi 333 1052 B e lf a s t Lane V e n tu ra , C a lif o r n ia Ja n u a ry 2 1 , 1963 Mr. W illiam H. WJrckoff San L eandro U n ifie d School D i s t r i c t 451 West Jo a q u in Avenue San L ean d ro , C a l if o r n ia D ear M r. w yckoff; W e w ant t o th a n k you f o r re v ie w in g th e c o m p ila tio n o f le g a l re q u ire m e n ts a f f e c t in g c u rric u lu m and i n s t r u c t i o n w hich i s p a r t o f o u r d o c to r a l d i s s e r t a t i o n . I t was an h o n o r f o r u s t o have y o u r a s s i s t a n c e , and we d e e p ly a p p r e c ia te i t . R e s p e c tf u lly y o u rs , D ale C. P a u l R o b e rt L. S eato n DCPrvi I APPENDIX E INTERVIEW GUIDE j INTERVIEW GUIDE I . CODE SECTIONS E d u c a tio n Code S e c . 7551 Duty o f G overning Board to E n fo rc e C ourse o f Study and Use o f T e x tb o o k s. The g o v e rn in g b o a rd o f any s c h o o l d i s t r i c t s h a l l e n fo rc e in th e s c h o o ls th e c o u rs e o f s tu d y and th e u se o f te x tb o o k s - p re s c r ib e d and ad o p ted by th e p ro p e r a u t h o r i t y . I s t h i s re q u ire m e n t a problem t o you? I f s o , why? What changes i n th e re q u ire m e n t w ould you recommend? S ec. 7553 Duty o f County B oards to P r e s c r ib e and E n fo rce C ourses o f S tu d y . County b o a rd s o f e d u c a tio n s h a l l , e x c e p t in c i t i e s h a v in g a c i t y b o ard o f e d u c a tio n , p r e s c r ib e and e n fo rc e i n th e p u b lic s c h o o ls a c o u rs e o f s tu d y . I s t h i s re q u ire m e n t a problem to you? I f s o , why? What changes i n th e re q u ire m e n t w ould you recommend? S e c . 7601 T e a rs o f I n s t r u c t i o n f o r E lem en tary S c h o o ls . E xcept a s o th e rw is e p ro v id e d , th e c o u rs e s o f stu d y f o r th e day e lefite n tary s c h o o ls i n d i s t r i c t s m a in ta in in g ju n i o r h ig h s c h o o ls s h a l l em brace s i x y e a rs o f i n s t r u c t i o n , and in d i s t r i c t s i n w hich ju n i o r h ig h s c h o o ls a r e n o t m ain t a i n e d , th e c o u rs e s o f s tu d y s h a l l em brace 8 y e a rs o f _ i n s t r u c t i o n . C o u rses s h a l l a l l o t s i x o r e i g h t y e a r s , r e s p e c t iv e l y , f o r i n s t r u c t i o n in s u b je c ts r e q u ir e d to be ta u g h t in su ch s c h o o ls and may a l l o t n o t more th a n two y e a r s f o r k in d e r g a r te n i n s t r u c t i o n . The c o u rs e o f s tu d y f o r any day e le m e n ta ry sc h o o l lo c a te d in an e le m e n ta ry sc h o o l d i s t r i c t s i t u a t e d i n a h ig h sc h o o l d i s t r i c t m a in ta in in g one o r more ju n i o r h ig h s c h o o ls , w here th e d i s t r i c t s a r e govern ed by b o a rd s o f i d e n t i c a l p e r s o n n e l, s h a l l em brace s ix y e a rs o r e i g h t y e a rs a t th e d i s c r e t i o n o f th e g o v e rn in g b o a rd o f th e e le m e n ta ry sc h o o l d i s t r i c t . The c o u rs e s o f s tu d y f o r th e day e le m e n ta ry s c h o o ls o f a u n i f i e d sc h o o l d i s t r i c t m a in ta in in g one o r m ore ju n i o r h ig h s c h o o ls s h a l l em brace s i x y e a rs o r e i g h t 335 336 y e a r s , o r some o f th e e le m e n ta ry s c h o o ls may be m a in ta in e d f o r s i x y e a r s and some may be m a in ta in e d f o r e i g h t y e a r s . The c o u r s e s o f s tu d y f o r any day e le m e n ta ry s c h o o l lo c a te d in an e le m e n ta ry sc h o o l d i s t r i c t s i t u a t e d in a u n io n o r j o i n t u n io n h ig h sc h o o l d i s t r i c t m a in ta in in g one o r more j u n i o r h ig h s c h o o ls s h a l l b e s i x y e a r s o r e i g h t y e a r s a t th e d i s c r e t i o n o f th e g o v e rn in g b o a rd o f th e e le m e n ta ry s c h o o l d i s t r i c t i f such h ig h sc h o o l d i s t r i c t d id n o t m ain t a i n a j u n i o r h ig h sc h o o l p r i o r to J u ly 1 , 1943, and i f su ch e le m e n ta ry s c h o o l i s lo c a te d 40 m ile s o r m ore by th e n e a r e s t t r a v e l e d ro a d from any j u n i o r h ig h s c h o o l m a in ta in e d by su ch h ig h s c h o o l d i s t r i c t . In a l l o t h e r c a s e s , th e c o u rs e s o f s tu d y o f any elem en t a r y s c h o o l s h a l l em brace e i g h t y e a r s . E ach day e le m e n ta ry s c h o o l may a l l o t n o t m ore th a n two y e a r s f o r k in d e r g a r te n i n s t r u c t i o n . I s t h i s re q u ire m e n t a p ro b le m to y o u ? I f s o , why? What ch an g es in th e re q u ire m e n t w ould you recommend? S e c . 7604 C o u rse o f S tu d y in E le m e n ta ry S c h o o ls . The c o u rs e o f stu d jr i n th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n i n th e f o llo w in g p r e s c r ib e d b ra n c h e s i n th e s e v e r a l g ra d e s i n w h ich eac h i s r e q u ir e d p u rs u a n t t o t h i s a r t i c l e (com m encing a t S e c . 7 601): ( a ) B e g in n in g i n g rad e 1 , and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s th e c a s e may b e , i n s t r u c t i o n s h a l l be g iv e n i n a l l th e fo llo w in g : (1 ) R ead in g (2 ) W ritin g (3 ) S p e ll in g (4 ) A r ith m e tic , w ith em phasis on b a s ic p r i n c i p l e s and te c h n iq u e s . (b ) B e g in n in g n o t l a t e r th a n g ra d e 4 and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s t h e c a s e may b e , i n s t r u c t i o n s h a l l be g iv e n in a l l o f th e fo llo w in g : (1 ) E n g lis h a s a s e p a r a t e s u b je c t w ith em p h asis on th o ro u g h n e s s , an d a s a d i s c i p l i n e s e p a r a te from th e s u b je c t o f s o c i a l s t u d i e s . (2 ) G eography. (3 ) H is to r y , in c lu d in g th e e a r l y h i s t o r y o f C a l i f o r n i a and th e h i s t o r y o f th e U n ite d S t a t e s . (c ) B e g in n in g n o t l a t e r th a n g ra d e 6 , and c o n tin u in g th ro u g h g ra d e 6 o r 8 as t h e c a se may b e , th e i n s t r u c t i o n s h a l l be g iv e n i n a l l o f th e fo llo w in g : (1 ) C iv ic s (2 ) A f o r e ig n la n g u ag e o r la n g u a g e s (3 ) N a tu r a l s c ie n c e 337 (4 ) H e a lth (d ) The c o u rs e o f s tu d y in th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n , i n th e g ra d e o r g ra d e s p r e s c r ib e d by th e c o u n ty b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty , in a l l o f th e f o llo w in g : (1 ) A rt (2 ) M usic ( e ) Such o th e r s t u d i e s , n o t to ex ce ed t h r e e , a s may be p r e s c r ib e d by th e b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty . N o tw ith s ta n d in g o th e r p r o v is io n s o f t h i s s e c t i o n to th e c o n t r a r y , a f o r e ig n la n g u ag e o r la n g u a g e s may b u t i s n o t r e q u ir e d to be in c lu d e d in th e c o u rs e o f s tu d y i n th e e le m e n ta ry s c h o o ls u n t i l Ju n e 3 0 , 1965, and on and a f t e r J u ly 1 , 1965, su ch c o u rs e o f s tu d y s h a l l in c lu d e a f o r e ig n la n g u a g e o r la n g u a g e s b e g in n in g n o t l a t e r th a n g ra d e 6 and c o n tin u in g th ro u g h g ra d e 6 o r 8 , a s th e c a s e may b e . The L e g i s la tu r e h e r e d e c la r e s t h a t i t i s th e p o li c y o f th e S ta t e t o f o s t e r and en c o u ra g e f o r e ig n la n g u a g e p rogram s in th e e le m e n ta ry and se c o n d a ry s c h o o ls by w h ich th e c h i l d re n o f t h i s S ta t e l e a r n to s p e a k and w r i t e f o r e ig n l a n g u ages w ith th e same f a c i l i t y w ith w hich th e c h i ld r e n e d u c a te d i n s c h o o ls o f o th e r c o u n t r i e s s p e a k and re a d f o r e ig n la n g u a g e s , in o r d e r t h a t th e c h i l d r e n o f t h i s S ta te be a d e q u a te ly p re p a re d to u n d e rta k e t h e i r d u ti e s a s A m erican c i t i z e n s i n a w o rld in w hich th e a b i l i t y t o com m unicate w ith p e o p le s o f o th e r c o u n t r i e s in t h e i r own to n g u e i s o f e v e r y - in c r e a s in g im p o rta n c e . Is t h i s re q u ire m e n t a p ro b lem t o you? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? Sec. 7605 Minimum Time Requirements in Certain Courses. A minimum of 50 percent of each school week shall be devoted to read ing, writing, language study, spelling, arithmetic, and civics in grades one to six, inclusive, and a minimum of 600 minutes of each school week shall be devoted to such subjects in grades seven and eight. Is this requirement a problem to you? If so, why? What changes in the requirement would you recommend? S e c . 7700 C ourse o f S tu d y f o r G rades 7 to 12 I n c l u s i v e . The c o u rs e o f s tu d y f o r g ra d e s 7 and 8 o f e a c h e le m e n ta ry s c h o o l, and f o r eac h j u n i o r h ig h s c h o o l, h ig h s c h o o l, o r g ra d e s 11 and 12 o f a f o u r - y e a r ju n i o r c o lle g e s h a l l be p re p a re d u n d e r th e d i r e c t i o n o f th e g o v e rn in g b o a rd h a v in g c o n t r o l t h e r e o f and s h a l l be s u b je c t to th e a p p ro v a l o f th e S ta t e 338 B oard o f E d u c a tio n . The c o u rse o f s tu d y s h a l l m eet th e re q u ire m e n t o f t h i s s e c t i o n . In a d d i tio n t o c o u rs e s o th e r w ise r e q u ir e d by law , th e c o u rse o f stu d y s h a l l r e q u ir e o f a l l p u p ils in g ra d e s 7 to 12 in c lu s iv e : (a ) F iv e y e a rs o f i n s t r u c t i o n i n th e u se o f E n g lis h , de s ig n e d to te a c h th e s tu d e n t to re a d r a p id l y and p e rc e p t i v e l y , to w r ite c l e a r l y and c o r r e c t l y , and to p r e s e n t id e a s o r a l l y . Such i n s t r u c t i o n s h a l l in c lu d e th e p r i n c i p l e s o f grammar and p u n c tu a tio n a s in s tru m e n ts o f re a d in g and w r i t i n g . A lso a c o re o f re a d in g d e sig n e d to f a m i l i a r i z e th e s tu d e n t w ith th e v a r i e t y o f l i t e r a r y form s and to im p ro v e h i s re a d in g a b i l i t y s h a l l be ta u g h t. (b ) F iv e y e a rs o f h i s t o r y conanencing w ith g ra d e 7 , to in c lu d e a l l o f th e fo llo w in g : (1 ) Twenty s e m e s te r p e r io d s o f A m erican h i s t o r y empha s iz i n g A m erican i n s t i t u t i o n s and i d e a l s , and C a l if o r n ia h i s t o r y . (2 ) Twenty s e m e s te r p e r io d s o f w o rld h i s t o r y , th e h i s t o r y o f W estern C i v i l i z a t i o n , and w o rld g eo g rap h y . (3 ) Ten s e m e s te r p e r io d s o f A m erican governm ent empha s iz i n g p r i n c i p l e s o f th e C o n s titu tio n and th e D e c la r a tio n o f In d e p e n d e n c e , and th e p r i n c i p l e s o f s t a t e and lo c a l governm ent u n d e r th e C o n s titu t i o n o f t h i s S t a t e . F o r p u rp o se s o f th e h i s t o r y re q u ire m e n ts d e s c rib e d by s u b d iv is io n ( b ) , in th e c a s e o f s c h o o ls w hich a r e n o t o p e ra te d on th e b a s is o f s e m e s te r p e r io d s , th e tim e d e v o te d to th e r e s p e c t iv e c o u rs e s s h a l l b e , a s n e a r ly a s p r a c t i c a b l e , th e e q u iv a le n t o f th e r e q u ir e d tim e a s m easured in te rm s o f s e m e s te r p e r io d s , and th e S ta te B oard o f E d u c a tio n s h a l l by r e g u l a t i o n , p r e s c r ib e th e m anner i n w hich tim e d u rin g th e sc h o o l y e a r s h a l l be a l lo c a t e d f o r su ch p u rp o se s i n th o s e s c h o o ls . I s t h i s re q u ire m e n t a problem to you? I f s o , why? What ch an g es i n th e re q u ire m e n t w ould you recommend? S ec. 7852 I n s t r u c t i o n i n M anners and M o ra ls; E f f e c ts o f A lco h o l and N a r c o tic s . I n s t r u c t i o n s h a l l be g iv e n in a l l g ra d e s o f sc h o o l and in a l l c l a s s e s d u rin g th e e n t i r e sc h o o l c o u rs e , in m anners and m o ra ls . I n s t r u c t i o n upon th e n a tu re o f a lc o h o l and n a r c o t ic s and t h e i r e f f e c t s upon th e human sy stem a s d e te rm in e d by s c ie n c e s h a l l be in c lu d e d i n th e c u rric u lu m o f a l l e le m e n ta ry and se c o n d a ry s c h o o ls . The g o v e rn in g b o a rd o f th e d i s t r i c t s h a l l a d o p t r e g u la tio n s 339 s p e c if y in g th e g ra d e o r g ra d e s and th e c o u rs e o r c o u rs e s in w hich su ch i n s t r u c t i o n w ith r e s p e c t t o a lc o h o l and n a r c o t ic s s h a l l be in c lu d e d . I s t h i s re q u ire m e n t a p ro b lem to you? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? S e c . 7901 C ourses in H is to ry and G overnm ent. In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , th e r e s h a l l be g iv e n r e g u la r c o u rs e s o f i n s t r u c t i o n i n th e C o n s titu tio n o f th e U n ite d S t a t e s , and i n A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s . In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , th e r e s h a l l be g iv e n i n s t r u c t i o n in th e C o n s titu tio n o f th e S ta te o f C a l if o r n ia , and in C a l if o r n ia h i s t o r y and c i v i c s . I s t h i s re q u ire m e n t a p roblem to you? I f s o , why? What chan g es in th e re q u ire m e n t w ould you recoum end? S ec. 7902 C ourses in H is to ry and G overnm ent: Grade L e v e ls . I n s t r u c t i o n in th e c o u rs e s r e q u ir e d by S e c tio n 7901 s h a l l b e g in n o t l a t e r th a n th e o p en in g o f th e e ig h th g ra d e and s h a l l c o n tin u e in th e h ig h s c h o o l c o u rs e and in c o u rse s i n s t a t e c o l le g e s , th e u n i v e r s i t i e s , and e d u c a tio n a l d e p a rtm e n ts o f s t a t e , m u n ic ip a l, and p r i v a t e i n s t i t u t i o n s , to an e x te n t to be d e te rm in e d by th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n . I s t h i s re q u ire m e n t a p ro b lem t o you? I f s o , why? What changes i n th e re q u ire m e n t w ould you recommend? S e c . 7903 P r e r e q u i s i t e s to A dvanced C o u rse s. B a sic i n s t r u c t i o n i n g eo g rap h y , U n ite d S ta te s h i s t o r y , c i v i c s , th e D e c la ra t i o n o f In d ep en d e n ce, th e C o n s tit u ti o n o f th e U n ite d S t a t e s , and in A m erican i n s t i t u t i o n s and id e a l s a s p r e s c r ib e d by S e c tio n 7901, 7902, and 7604 o f t h i s code s h a l l be p r e r e q u i s i t e to p a r t i c i p a t i o n by p u p ils in advanced c o u rs e s in v o lv in g th e s tu d y o f problem s in s o c io lo g y , p o l i t i c a l s c ie n c e , eco n o m ics, f o r e ig n tr a d e and f o r e ig n a f f a i r s . I s t h i s re q u ire m e n t a pro b lem to you? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? 340 S ec. 8159 Minimum I n s t r u c t i o n i n E lem en tary S c h o o ls. A ll p u p ils e n r o lle d in th e e le m e n ta ry s c h o o ls , e x c e p t p u p ils e x c u se d , s h a l l be r e q u ir e d to a tte n d upon th e c o u rs e s o f p h y s ic a l e d u c a tio n f o r an i n s t r u c t i o n a l p e r io d i n eac h sc h o o l day w hich s h a l l n o t be l e s s th a n 20 m in u te s e x c lu s iv e o f r e c e s s e s and lu n c h p e r io d . I s t h i s re q u ire m e n t a p ro b lem t o you? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? S ec. 8160 Minimum I n s t r u c t i o n i n J u n io r and S e n io r H igh S c h o o ls . A ll p u p ils e n r o lle d i n th e ju n i o r o r s e n io r h ig h s c h o o ls , e x c e p t p u p ils e x c u se d , s h a l l be r e q u ir e d t o a t te n d upon th e c o u rs e s o f p h y s ic a l e d u c a tio n f o r an i n s t r u c t i o n a l p e r io d i n eac h s c h o o l day w hich s h a l l be n o t l e s s th a n th e le n g th o f th e r e g u la r academ ic p e r io d s o f th e s c h o o l. Is t h i s re q u ire m e n t a pro b lem to you? I f s o , why? H hat changes i n th e re q u ire m e n t w ould you recommend? S ec. 8453 S e c t a r ia n . P a r t i s a n o r D en o m in atio n al P u b lic a tio n s o r T e a c h in g s . No p u b li c a ti o n o f a s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l c h a r a c te r , s h a l l be d i s t r i b u t e d o r u sed f o r s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l p u rp o se s in any s c h o o l, e x c e p t t h a t n o th in g h e r e i n s h a l l r e s t r i c t th e developm ent and u se o f s c h o o l l i b r a r y c o l l e c t i o n s . No s e c t a r i a n o r d e n o m in a tio n a l d o c tr in e s h a l l be ta u g h t in any s c h o o l. Any sc h o o l d i s t r i c t o r c i t y , th e o f f i c e r s o f w hich know ingly a llo w any c l a s s e s o r s tu d e n ts to be ta u g h t in v i o l a t i o n o f t h i s s e c ti o n , f o r f e i t s a l l r i g h t s to any s t a t e o r co u n ty a p p o rtio n m e n t o f s c h o o l m oneys, and upon s a t i s f a c t o r y e v id e n c e o f any v i o l a t i o n , th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n and s c h o o l s u p e r in te n d e n t s h a l l w ith h o ld b o th s t a t e and co u n ty a p p o rtio n m e n ts. I s t h i s re q u ire m e n t a p ro b lem to y o u ? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? S ec. 12822 D i s t r i c t G overning B oards to I n s t i t u t e P rogram . The g o v e rn in g b o a rd o f ea c h d i s t r i c t s h a l l , in a c c o rd a n c e w ith th e r u le s and r e g u la tio n s o f th e S ta t e Board o f E d u c a tio n , i n s t i t u t e a t e s t i n g program in th e d i s t r i c t and s h a l l , e x c e p t a s o th e rw is e p ro v id e d in t h i s s e c t i o n , s e l e c t from th e ap p ro v ed l i s t th e ach iev em en t and i n t e l l i g e n c e t e s t s 341 to be u se d i n th e t e s t i n g program . The co u n ty b o ard o f e d u c a tio n s h a l l s e l e c t from th e appro v ed l i s t o f a c h ie v e m ent and i n t e l l i g e n c e t e s t s th e t e s t s to be u se d in th e t e s t i n g program o f e a c h e le m e n ta ry d i s t r i c t w hich had l e s s th a n 901 u n it s o f a v e ra g e d a ily a tte n d a n c e d u rin g th e p r e c e d in g f i s c a l y e a r and each u n i f i e d d i s t r i c t w hich h ad l e s s th a n 1501 u n it s o f a v e ra g e d a ily a tte n d a n c e d u rin g th e p r e c e d in g f i s c a l y e a r , w hich d i s t r i c t i s u n d e r th e j u r i s d i c t i o n o f th e co u n ty s u p e r in te n d e n t o t s c h o o ls o f th e c o u n ty . I s t h i s re q u ire m e n t a problem to you? I f s o , why? What changes i n th e re q u ire m e n t w ould you recommend? T i t l e 5— 97 R eq u ired I n s t r u c t i o n in S econdary S c h o o ls . The g o v e rn in g b o ard o f e a c h sch o o l d i s t r i c t m a in ta in in g one o r more se c o n d a ry s c h o o ls s h a l l p r e s c r ib e c o u rs e s o f i n s t r u c t i o n w hich s h a l l be re q u ir e d o f a l l p u p ils and w h ich , i n a d d itio n to in c lu d in g th o s e r e q u ir e d by law , s h a l l in c lu d e c o u rs e s o f I n s t r u c t i o n : (a ) In th e u se o f E n g lis h to prom ote th e s a t i s f a c t o r y m a ste ry o f o r a l and w r i t t e n E n g lis h . (b ) The g o v e rn in g b o a rd o f th e sc h o o l d i s t r i c t s h a l l p ro v id e c o u rs e s o f i n s t r u c t i o n in th e C o n s titu tio n o f th e U n ite d S t a t e s , and in A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and id e a l s and o f th e p r i n c i p l e s o f s t a t e and lo c a l governm ent e s ta b l is h e d u n d e r th e C o n s ti t u t i o n o f t h i s S t a t e , i n le n g th n o t le s s th a n 15 s e m e s te r p e r io d s in e v e ry j u n i o r h ig h s c h o o l, s e n io r h ig h s c h o o l, and fo u r y e a r h ig h s c h o o l; and i n e v e ry j u n i o r c o lle g e f o r a t l e a s t th r e e c r e d i t h o u rs . (1 ) A se m e s te r p e r io d i s d e fin e d as one p e rio d o f 40 to 60 m in u te s p e r week th ro u g h o u t one s e m e s te r o f n o t l e s s th a n 17 w eeks. I s t h i s re q u ire m e n t a p roblem to you? I f s o , why? What changes i n th e re q u ire m e n t w ould you recommend? T i t l e 5— 102 R eq u irem en ts f o r G ra d u a tio n from Secondary S c h o o l. (a ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a se c o n d a ry sc h o o l s h a l l a u th o riz e to g ra d u a te , from any se c o n d a ry s c h o o l, any p u p il o f good c h a r a c te r and c i t i z e n s h ip who s a t i s f a c t o r i l y co m p letes th e f u l l c u rric u lu m p r e s c r ib e d f o r th e sc h o o l in w hich th e p u p il i s r e g u la r ly e n r o lle d and in a tte n d a n c e a t th e tim e o f c o m p le tio n o f h i s w ork, in c lu d in g i n s t r u c t i o n i n th e C o n s titu tio n o f th e 342 U n ite d S ta t e s , and in A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s , and o f th e p r i n c i p l e s o f s t a t e and lo c a l governm ent e s t a b l is h e d u n d er th e C o n s titu tio n th e re o n . (b ) The g o v ern in g b o a rd o f a s c h o o l d i s t r i c t m a in ta in in g a fo u r y e a r o r s e n i o r h ig h s c h o o l s h a l l g r a n t dip lo m a o f h ig h s c h o o l g ra d u a tio n f o r th e c o m p le tio n o f a c o u rs e o f stu d y o r c u rric u lu m w hich in c lu d e s n o t l e s s th a n 190 sem es t e r p e r io d s and n o t more th a n 240 s e m e s te r p e r io d s o f c la ss ro o m i n s t r u c t i o n and s u p e rv is e d le a r n in g , in c lu d in g work e x p e rie n c e . (1 ) A s e m e s te r p e r io d i s d e fin e d a s one p e r io d o f 40-60 m in u tes p e r week th ro u g h one s e m e s te r o f n o t le s s th a n 17 w eek s. When a sc h o o l i s o p e r a tin g on a minimum sc h o o l day ( f o u r c lo c k h o u rs ) a d ju s tm e n ts in le n g th o f p e r io d o r number o f p e rio d s p e r week may be made w ith o u t r e d u c tio n o f th e number o f s e m e s te r p e rio d s w hich w ould o th e rw is e be c r e d i t e d . (c ) O m itted . (d ) The g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t m a in ta in in g a se c o n d a ry sc h o o l s h a l l aw ard th e a p p r o p r ia te dip lo m a o r d e g re e w henever a p u p il s h a l l have co m p lete d a l l r e q u i r e m ents o f a f u l l c u rric u lu m o f th e se c o n d a ry sc h o o l w ith o u t r e g a rd to th e le n g th o f tim e a c t u a l l y ta k e n by th e p u p il to c o m p lete su ch r e q u ire m e n ts . (1 ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t s h a l l g r a n t t o any p u p il who s a t i s f a c t o r i l y c o m p lete s th e re q u ire m e n ts o f any c o u rse o f s tu d y in l e s s th a n th e p r e s c r ib e d tim e , th e f u l l number o f s e m e s te r p e r io d s o r c r e d i t h o u rs sc h e d u le d f o r su ch c o u r s e . (e ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a se c o n d a ry sc h o o l s h a l l is s u e a c e r t i f i c a t e o f c o m p le tio n t o any p u p il who s u c c e s s f u lly co m p le te s any c o u rse o f s tu d y o r c u rric u lu m in le n g th l e s s th a n th e f u l l num ber o f y e a rs and g ra d e s m a in ta in e d by th e s c h o o l. ( f ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a h ig h sc h o o l s h a l l r e q u ir e any p u p il p u rs u in g a v o c a tio n a l c u rric u lu m i n a f o u r - y e a r o r s e n io r h ig h sc h o o l t o com plete in a s p e c i f i c v o c a tio n a l f i e l d a seq u en ce o f c o u rs e s o f s tu d y approved by th e S ta te D epartm ent o f E d u c a tio n . (g ) The g o v e rn in g b o ard o f a s c h o o l d i s t r i c t m a in ta in in g a h ig h sc h o o l may aw ard a d ip lo m a o f g ra d u a tio n to a p e rso n h o n o ra b ly d is c h a rg e d from th e arm ed f o r c e s o f th e U n ite d S ta t e s who: (1 ) E n te re d a c t iv e s e r v ic e in su ch arm ed f o r c e s su b se q u e n t t o Septem ber 16, 1950, and s e rv e d t h e r e i n fo r n o t l e s s th a n 90 days and 343 (2 ) C om pleted T e s ts o f G e n e ra l E d u c a tio n D evelopm ent (h ig h sc h o o l l e v e l ) p re p a re d by th e A m erican C o u n c il on E d u c a tio n w ith an a v e ra g e s ta n d a r d s c o re o f 4 5 , o r ab o v e, on th e f i v e t e s t s i n th e b a t t e r y and w ith a s ta n d a r d s c o re o f 3 5 , o r ab o v e, on ea c h o f th e f i v e t e s t s i n th e b a t t e r y , and (3 ) Has m et th e s t a t e l e g a l re q u ire m e n t o f U n ite d S ta t e s h i s t o r y and U n ite d S ta t e s C o n s tit u ti o n in a d d i tio n to th e re q u ire m e n ts p r e s c r ib e d by th e g o v e rn in g b o a rd o f th e h ig h s c h o o l g r a n tin g th e d ip lo m a . I s t h i s re q u ire m e n t a p ro b lem to you? I f s o , why? What changes in th e re q u ire m e n t w ould you recommend? I I . OPEN AREA 1 . What s e c tio n s o th e r th a n th o s e m e n tio n e d a r e a p ro b lem to you? I l l . GENERALIZATIONS 1 . I s c e n t r a l i z a t i o n o f a u t h o r i t y i n c u rric u lu m a d v is a b le ? 2 . I s p ie c e -m e a l c u rric u lu m l e g i s l a t i o n w ise ? 3 . Can we p ro v id e f o r th e in d i v id u a l s tu d e n t th ro u g h s t a t e c o n t r o l o f c u rric u lu m ? 4 . What s u g g e s tio n s do you have f o r c h a n g in g th e p r e s e n t c o n d itio n o f c u rric u lu m l e g i s l a t i o n in C a l if o r n ia ? 5 . Are th e num ber o f l e g a l re q u ire m e n ts a p roblem ? 6 . Do you th in k t h e r e w i l l be m ore c u rric u lu m l e g i s l a t i o n i n th e f u tu r e ? 7 . What sh o u ld be th e r o l e o r p o s i t i o n o f th e p r o f e s s io n a l e d u c a to r in re g a rd t o c u rric u lu m l e g i s l a t i o n ? APPENDIX F LEG AL R EQ U IR EM EN TS AFFECTING SE C O N D A R Y A N D E L E M E N T A R Y INSTRUCTION A N D C U R R IC U L U M IN CALIFORNIA LEGAL REQUIREMENTS AFFECTING SECONDARY A N D ELEMENTARY INSTRUCTION AND CURRICULUM IN CALIFORNIA P r o h ib ite d S ec. 8451 S e c . 8452 S e c . 8453 S ec. 8454 EDUCATION CODE I n s t r u c t i o n I n s t r u c t i o n o r E n te rta in m e n ts R e f le c tin g upon C itiz e n s B ecause o f R ace, C o lo r, o r C re e d . No te a c h e r i n g iv in g i n s t r u c t i o n , n o r e n te r ta in m e n ts p e r m itte d in o r a b o u t any s c h o o l, s h a l l r e f l e c t i n any way upon c i t i z e n s o f th e U n ite d S ta t e s b e c a u se o f t h e i r r a c e , c o l o r , o r c r e e d . Means o f I n s t r u c t i o n R e f le c tin g upon C itiz e n s B ecause o f R ace, C o lo r, o r C re e d . No te x tb o o k , c h a r t , o r o th e r means o f i n s t r u c t i o n a d o p te d by th e S t a t e , c o u n ty , c i t y , o r c i t y and co u n ty b o a rd s o f e d u c a tio n f o r u se i n th e p u b li c s c h o o ls s h a l l c o n ta in any m a tte r r e f l e c t i n g upon c i t i z e n s o f th e U n ite d S ta t e s b eca u se o f t h e i r r a c e , c o l o r , o r c r e e d . S e c t a r ia n , P a r t i s a n o r D en o m in atio n al P u b lic a tio n s o r T e a c h in g s . No p u b li c a ti o n o f a s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l c h a r a c te r , s h a l l be d i s t r i b u t e d o r u se d f o r s e c t a r i a n , p a r t i s a n , o r d e n o m in a tio n a l p u rp o se s in any s c h o o l, e x c e p t t h a t n o th in g h e r e in s h a l l r e s t r i c t th e d evelopm ent and u s e o f sc h o o l l i b r a r y c o l l e c t i o n s . No s e c t a r i a n o r d e n o m in a tio n a l d o c tr in e s h a l l be ta u g h t in any s c h o o l. Any sc h o o l d i s t r i c t o r c i t y , th e o f f i c e r s o f w hich know ingly a llo w any c l a s s e s o r s tu d e n ts to be ta u g h t in v i o l a t i o n o f t h i s s e c t i o n , f o r f e i t s a l l r i g h t s to any s t a t e o r co u n ty a p p o rtio n m e n t o f s c h o o l m oneys, and upon s a t i s f a c t o r y e v id e n c e o f any v i o l a t i o n , th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n and sc h o o l s u p e r in te n d e n t o f a c o u n ty o r d i s t r i c t s h a l l w ith h o ld b o th s t a t e and co u n ty a p p o rtio n m e n ts. P ropaganda and S o l i c i t a t i o n o f F u n d s. (a ) No b u l l e t i n , c i r c u l a r , o r o th e r p u b li c a ti o n o f any c h a r a c te r w hose p u rp o se i s t o s p re a d p ro p ag an d a o r to f o s t e r membar- s h ip in o r s u b s c r ip ti o n to th e fun d s o f any o r g a n iz a tio n n o t d i r e c t l y u n d e r th e c o n tr o l o f th e sc h o o l a u t h o r i t i e s , o r to be u se d a s th e b a s is o f s tu d y o r r e c i t a t i o n o r to su p p lem en t th e r e g u la r sc h o o l s tu d ie s s h a l l be d i s t r i b u t e d o r s u f f e r e d to be d i s t r i b u t e d o r shown to th e p u p ils o f 345 346 any p u b lic s c h o o l, on th e sc h o o l p re m ise s d u rin g sc h o o l h o u rs o r w ith in one h o u r b e fo re th e tim e o f o p en in g o r w ith in one h o u r a f t e r th e tim e o f c l o s in g o f th e s c h o o l, (b ) No p u p ils o f th e p u b lic sc h o o l s h a l l be s o l i c i t e d by te a c h e r s o r o th e r s to s u b s c r ib e to th e funds o f , o r work f o r , any o r g a n iz a tio n n o t d i r e c t l y u n d e r th e c o n t r o l o f th e sc h o o l a u t h o r i t i e s , ( c ) No i n s t r u c t i o n s h a l l be g iv e n th ro u g h l e c t u r e s o r o t h e r m eans, u n le s s th e m a te r ia l c o n ta in e d in th e b u l l e t i n , c i r c u l a r , o r p u b li c a ti o n , o r th e p u rp o se o f th e s u b s c r ip ti o n o r i n s t r u c t i o n h a s been ap p ro v ed by th e S t a t e Board o f E d u c a tio n , o r by th e co u n ty b o ard o f e d u c a tio n , o r by th e g o v e rn in g b o ard o f th e sc h o o l d i s t r i c t in w hich th e s c h o o l i s s i t u a t e d . No p r o h ib i tio n o f t h i s s e c tio n s h a l l ap p ly t o b u l l e t i n s o r c i r c u l a r s c o n c e rn in g th e m e e tin g s o f t h e i r o r g a n iz a tio n s is s u e d by any p a r e n t - te a c h e r a s s o c ia t io n o r by any o r g a n iz a tio n o f p a r e n ts form ed f o r th e p u rp o se o f c o - o p e r a tin g w ith th e sc h o o l a u t h o r i t i e s in im proving sc h o o l c o n d itio n s i n th e d i s t r i c t . S ec. 8435 Advocacy o r T each in g o f Communism; "Communism" D e fin e d . No te a c h e r g iv in g i n s t r u c t i o n in any s c h o o l, o r on any p r o p e r ty b e lo n g in g to any a g e n c ie s in c lu d e d in th e P u b lic School S ystem , s h a l l a d v o c a te o r te a c h communism w ith th e i n t e n t to in d o c t r i n a t e any p u p il w ith , o r in c u l c a te a p r e f e r e n c e iq th e mind o f any p u p il f o r communism. The L e g is la tu r e i n p r o h ib i tin g th e advocacy o r te a c h in g o f communism w ith th e in t e n t t o i n d o c tr in a t e any p u p il w ith o r in c u lc a te a p re fe re n c e in th e mind o f any p u p il f o r , su c h d o c tr in e does n o t in te n d to p re v e n t th e te a c h in g o f th e f a c t s o f th e above s u b je c t b u t in te n d s to p re v e n t th e advocacy o f , and th e in c u lc a t io n and in d o c t r i n a t i o n in to communism as i s h e r e i n a f t e r d e f in e d , f o r th e p u rp o se o f u n d erm in in g th e p a t r i o t i s m f o r , and th e b e l i e f i n , th e G overnm ent o f th e U n ite d S t a t e s and o f t h i s S ta t e in th e m inds o f th e p u p ils in th e P u b lic S chool S ystem . F or th e p u rp o se s o f t h i s s e c tio n , communism i s a p o l i t i c a l th e o ry t h a t th e p r e s e n tly e x i s t i n g form o f governm ent o f th e U n ite d S ta t e s o r o f t h i s S ta te sh o u ld be changed, by f o r c e , v io le n c e , o r o th e r u n c o n s ti tu ti o n a l m eans, to a t o t a l i t a r i a n d ic t a t o r s h i p w hich i s b a se d on th e p r i n c i p l e s o f communism a s expounded by M arx, L enin and S t a l i n . M andatory L e g is la tio n S ec. 71 Language o f I n s t r u c t i o n . A ll s c h o o ls s h a l l be ta u g h t in th e E n g lis h la n g u a g e . 347 S ec. 5203 L in c o ln and W ashington B irth d a y E x e r c is e s . A ll p u b lic s c h o o ls and e d u c a tio n i n s t i t u t i o n s th ro u g h o u t th e S ta te s h a l l , on th e sc h o o l day n e x t p re c e d in g F e b ru a ry 1 2 th and F e b ru a ry 2 2 d , h o ld th e custom ary e x e r c is e s in memory o f Abraham L in c o ln and George W ashington, r e s p e c t iv e l y . S ec. 5204 A n n iv e rsa ry o f A doption o f C o n s tit u ti o n . A ll p u b lic s c h o o ls and e d u c a tio n a l i n s t i t u t i o n s s h a l l in c lu d e i n th e sc h o o l w ork on o r n e a r th e a n n iv e r s a r y o f th e a d o p tio n o f th e C o n s titu tio n o f th e U n ite d S ta te s e x e r c is e s and i n s t r u c t i o n f o r p u p ils s u i t a b l e to t h e i r ag es in th e p u r p o s e , m eaning and im p o rtan ce o f th e C o n s titu tio n o f th e U n ite d S t a t e s , in c lu d in g th e B i l l o f R ig h ts . S e c . 5205 C o n se rv a tio n , B ird , and A rbor Day. March 7 th o f each y e a r , th e a n n iv e r s a r y o f th e b ir th d a y o f L u th e r B urbank, i s s e t a p a r t and d e s ig n a te d C o n s e rv a tio n , B ird , and A rbor Day. A ll p u b lic s c h o o ls and e d u c a tio n a l i n s t i t u t i o n s s h a l l o b se rv e C o n s e rv a tio n , B ird , and A rbor Day n o t a s a h o l i day , b u t by in c lu d in g in th e sc h o o l w ork o f th e d ay , s u i t a b l e e x e r c is e s h a v in g f o r t h e i r o b je c t i n s t r u c t i o n a s to th e econom ic v a lu e o f b ir d s and t r e e s , and th e p ro m o tio n o f a s p i r i t o f p r o t e c t i o n to w ard them , and as to th e econom ic v a lu e o f n a t u r a l r e s o u r c e s , and th e d e s i r a b i l i t y to t h e i r c o n s e r v a tio n . S ec. 5206 Susan B. Anthony Day. F e b ru a ry 1 5 th o f each y e a r , th e a n n iv e rs a ry o f th e b ir th d a y o f S usan B. A nthony, is d e s ig n a te d and s e t a p a r t a s S usan B. A nthony Day. A ll p u b lic s c h o o ls and e d u c a tio n a l i n s t i t u t i o n s s h a l l o b se rv e t h i s day w ith s u i t a b l e e x e r c is e s , d i r e c t i n g a t t e n t i o n to th e developm ent o f th e p o l i t i c a l and econom ic s t a t u s o f th e women in th e U n ite d S t a t e s , th ro u g h th e e f f o r t s o f Susan B. A nthony. S ec. 5211 D a ily P erform ance o f P a t r i o t i c E x e rc is e s in P u b lic S c h o o ls . In e v e ry p u b lic e le m e n ta ry sc h o o l e a c h day d u rin g th e sc h o o l y e a r a t th e b e g in n in g o f th e f i r s t r e g u la r ly sc h e d u le d c l a s s o r a c t i v i t y p e r io d a t w hich th e m a jo r ity o f th e p u p ils o f th e sc h o o l n o rm a lly b e g in th e sc h o o l d ay , t h e r e s h a l l b e co n d u cted a p p r o p r ia te p a t r i o t i c e x e r c is e s . The g iv in g o f th e p le d g e o f a l l e g ia n c e to th e F la g o f th e U n ite d S ta te s o f A m erica s h a l l s a t i s f y th e re q u ire m e n t o f t h i s s e c ti o n . In every public secondary school there shall be conducted dally appropriate patriotic exercises. The giving of the pledge of allegiance to the Flag of the United States of America shall satisfy such requirement. 348 S ec. S ec. S ec. S ec. S ec. S ec. S ec. Such p a t r i o t i c e x e r c is e s t o r se c o n d a ry s c h o o ls s h a l l be co n d u cted i n a c c o rd a n c e w ith th e r e g u la tio n s w hich s h a l l be ad o p ted by th e g o v e rn in g b o a rd o f th e d i s t r i c t m ain ta i n i n g th e se c o n d a ry s c h o o l. 5951 E s ta b lis h m e n t and M ain ten an ce o f G uid an ce, P la c e m e n t, and F ollow -up P rogram . The g o v e rn in g b o a rd o f eac h h ig h sc h o o l d i s t r i c t s h a l l e s t a b l i s h and m a in ta in a program o f g u id a n c e , p la c e m e n t, and fo llo w -u p f o r a l l m in o rs w ith in th e d i s t r i c t s u b je c t t o com pulsory c o n tin u a tio n e d u c a tio n . 5952 E sta b lish m e n t and M ain ten an ce o f C o n tin u a tio n C la s s e s f o r M in o rs. The g o v e rn in g b o a rd o f eac h h ig h s c h o o l d i s t r i c t s h a l l e s t a b l i s h and m a in ta in s p e c i a l c o n tin u a tio n e d u c a tio n c l a s s e s w henever th e r e a r e any m inors r e s id i n g w ith in th e h ig h s c h o o l d i s t r i c t who a r e s u b je c t to com p u ls o ry c o n tin u a tio n e d u c a tio n ; p ro v id e d t h a t i f th e r e a r e le s s th a n 50 su ch m in o rs, th e y may be e n r o lle d in r e g u la r h ig h sc h o o l c l a s s e s o r in ap p ro v ed c o rre sp o n d e n c e c o u rs e s , h o m e-stu d y , o r su ch o th e r e d u c a tio n a l program a s th e g o v e rn in g b o a rd i s a u th o riz e d t o , and may p ro v id e ; and p ro v id e d f u r t h e r , t h a t m in o rs l i v i n g more th a n two m ile s from th e sc h o o lh o u se by th e n e a r e s t t r a v e le d ro a d may be exem pted by th e g o v e rn in g b o ard o f s a id d i s t r i c t . 5953 Minimum Weekly Hours in I n s t r u c t i o n . S p e c ia l c o n tin u a tio n e d u c a tio n c la s s e s s h a l l p ro v id e a t l e a s t fo u r 60 m in u te h o u rs o f i n s t r u c t i o n p e r week f o r each m in o r w ith in th e h ig h sc h o o l d i s t r i c t who i s s u b je c t to com pulsory c o n tin u a tio n e d u c a tio n . 5954 Hours When C la s s e s Are M a in ta in e d . Such c l a s s e s s h a l l be m a in ta in e d betw een th e h o u rs o f 8 A.M. and 5 P.M. 5955 S u i t a b i l i t y o f I n s t r u c t i o n . Such c l a s s e s s h a l l p ro v id e s u i t a b l e i n s t r u c t i o n f o r th e v a r io u s in d iv id u a ls f o r whose b e n e f i t th e y a r e e s t a b l i s h e d . 7510 C onform ity w ith S ta n d a rd s . C ourses o f stu d y i n th e p u b lic s c h o o ls s h a l l conform to such minimum s ta n d a rd s when a d o p te d . 7551 Duty o f G overning Board t o E n fo rc e C ourse o f Study and Use o f T e x tb o o k s. The g o v e rn in g b o ard o f any sc h o o l d i s t r i c t s h a l l e n fo rc e in th e s c h o o ls th e c o u rs e o f s tu d y and th e u se o f te x tb o o k s p r e s c r ib e d and ad o p te d by th e p ro p e r a u t h o r i t y . 349 S e c . 7552 D uty o f C ity Board to P re p a re and F i l e C o u rses f o r P u b lic I n s p e c ti o n . Each c i t y b o a rd o f e d u c a tio n s h a l l p re p a re a n n u a lly and keep on f i l e f o r p u b lic in s p e c tio n th e c o u rs e s o f s tu d y p r e s c r ib e d f o r th e k in d e r g a r te n , e le m e n ta ry , and h ig h s c h o o ls o f th e c i t y sc h o o l d i s t r i c t u n d e r i t s j u r i s d i c t i o n . S ec. 7553 Duty o f County B oards t o P r e s c r ib e and E n fo rce C ourse o f S tu d y . County b o a rd s o f e d u c a tio n s h a l l , e x c e p t in c i t i e s h a v in g a c i t y b o a rd o f e d u c a tio n , p r e s c r ib e and e n fo rc e in th e p u b lic s c h o o ls a c o u rs e o f s tu d y . S ec. 7601 Y ears o f I n s t r u c t i o n f o r E lem en tary S c h o o ls . E xcept a s o th e rw is e p ro v id e d , th e c o u rs e s o f s tu d y f o r th e day e le m e n ta ry s c h o o ls i n d i s t r i c t s m a in ta in in g ju n i o r h ig h s c h o o ls s h a l l em brace s i x y e a rs o f i n s t r u c t i o n , and in d i s t r i c t s in w hich ju n i o r h ig h s c h o o ls a r e n o t m a in ta in e d , th e c o u rs e s o f stu d y s h a l l em brace 8 y e a rs o f i n s t r u c t i o n . C o u rses s h a l l a l l o t s i x o r e i g h t y e a r s , r e s p e c t i v e l y , f o r i n s t r u c t i o n in s u b je c t s r e q u ir e d to be ta u g h t i n such s c h o o ls and may a l l o t n o t. more th a n two y e a rs f o r k in d e r g a r te n i n s t r u c t i o n . The c o u rse o f s tu d y f o r any day e le m e n ta ry sc h o o l lo c a te d in an e le m e n ta ry sc h o o l d i s t r i c t s i t u a t e d i n a h ig h sc h o o l d i s t r i c t m a in ta in in g one o r more j u n i o r h ig h s c h o o ls , w here th e d i s t r i c t s a r e g o v ern ed by b o a rd s o f i d e n t i c a l p e r s o n n e l, s h a l l em brace s i x y e a r s o r e i g h t y e a rs a t th e d i s c r e t i o n o f th e g o v e rn in g bo ard o f th e e le m e n ta ry sc h o o l d i s t r i c t . The c o u rs e s o f s tu d y f o r th e day e le m e n ta ry s c h o o ls o f a u n if i e d sc h o o l d i s t r i c t m a in ta in in g one o r more ju n i o r h ig h s c h o o ls s h a l l em brace s i x y e a r s o r e i g h t y e a r s , o r some o f th e e le m e n ta ry s c h o o ls may be m a in ta in e d f o r s i x y e a rs and some may be m a in ta in e d f o r e i g h t y e a r s . The c o u rs e s o f s tu d y f o r any day e le m e n ta ry sc h o o l lo c a te d i n an e le m e n ta ry s c h o o l d i s t r i c t s i t u a t e d in a u n io n o r j o i n t u n io n h ig h sc h o o l d i s t r i c t m a in ta in in g one o r more ju n i o r h ig h s c h o o ls s h a l l be s i x y e a r s o r e ig h t y e a rs a t th e d i s c r e t i o n o f th e g o v e rn in g b o a rd o f th e e le m e n ta ry sc h o o l d i s t r i c t i f su ch h ig h sc h o o l d i s t r i c t d id n o t m ain t a i n a j u n i o r h ig h s c h o o l p r i o r t o J u ly 1 , 1943, and i f such e le m e n ta ry sc h o o l i s lo c a te d 40 m ile s o r m ore by th e n e a r e s t tr a v e le d ro a d from any ju n i o r h ig h sc h o o l m ain ta in e d by su c h h ig h sc h o o l d i s t r i c t . In a l l o th e r c a s e s , th e c o u rs e s o f s tu d y o f any e le m e n ta ry s c h o o l s h a l l em brace e i g h t y e a r s . Each day e le m e n ta ry sc h o o l may a l l o t n o t more th a n two y e a rs f o r k in d e r g a r te n i n s t r u c t i o n . 350 S e c . 7604 C ourse o f S tu d y in E le m e n ta ry S c h o o ls . The c o u rs e o f s tu d y in th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n i n th e fo llo w in g p r e s c r ib e d b ra n c h e s in th e s e v e r a l g ra d e s i n w hich eac h i s r e q u ir e d p u rs u a n t to t h i s a r t i c l e (commending a t S e c tio n 7 6 0 1 ): (a ) B e g in n in g i n g ra d e 1, and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s th e c a s e may b e , i n s t r u c t i o n s h a l l be g iv e n i n a l l th e fo llo w in g : (1 ) R eading (2 ) W ritin g (3 ) S p e llin g (4 ) A r ith m e tic , w ith em ph asis on b a s ic p r i n c i p l e s and te c h n iq u e s . (b ) B e g in n in g n o t l a t e r th a n g ra d e 4 and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s th e c a s e may b e , i n s t r u c t i o n s h a l l b e g iv e n i n a l l o f th e fo llo w in g : (1 ) E n g lis h as a s e p a r a te s u b je c t w ith em p h asis on th o ro u g h n e s s , and a s a d i s c i p l i n e s e p a r a te from th e s u b je c t s o f s o c i a l s t u d i e s . (2 ) G eography (3 ) H is to r y , in c lu d in g th e e a r l y h i s t o r y o f C a l if o r n ia and th e h i s t o r y o f th e U n ite d S t a t e s . (c ) B eg in n in g n o t l a t e r th a n g ra d e 6 , and c o n tin u in g th ro u g h g ra d e 6 o r 8 a s th e c a s e may b e , i n s t r u c t i o n s h a l l b e g iv e n i n a l l o f th e f o llo w in g : (1 ) C iv ic s (2 ) A f o r e ig n la n g u a g e o r la n g u a g e s (3 ) N a tu r a l s c ie n c e (4 ) H e a lth (d ) The c o u rs e o f s tu d y in th e e le m e n ta ry s c h o o ls s h a l l in c lu d e i n s t r u c t i o n , in th e g ra d e o r g ra d e s p r e s c r ib e d by th e c o u n ty b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty , in a l l o f th e fo llo w in g : (1 ) A rt (2 ) M usic (e ) Such o th e r s t u d i e s , n o t to ex ceed t h r e e , a s may be p r e s c r ib e d by th e b o a rd o f e d u c a tio n o f th e c i t y , c o u n ty , o r c i t y and c o u n ty . N o tw ith s ta n d in g o th e r p r o v is io n s o f t h i s s e c t i o n to th e c o n t r a r y , a f o r e ig n la n g u a g e o r la n g u a g e s may b u t i s n o t r e q u ir e d t o be in c lu d e d in th e c o u rs e o f s tu d y in th e e le m e n ta ry s c h o o ls u n t i l June 3 0 , 1965, and on an d a f t e r J u ly 1 , 1965, su c h c o u rs e o f s tu d y s h a l l in c lu d e a f o r e ig n la n g u a g e o r la n g u a g e s b e g in n in g n o t l a t e r th a n g ra d e 6 and c o n tin u in g th ro u g h g ra d e 6 o r 8 , a s th e c a se may b e . The L e g i s la tu r e h e r e d e c la r e s t h a t i t i s th e p o lic y o f th e S ta t e to f o s t e r and en c o u ra g e f o r e ig n la n g u a g e p rogram s in th e e le m e n ta ry and se c o n d a ry s c h o o ls by w hich th e c h i ld r e n o f t h i s S t a t e l e a r n to s p e a k and w r ite f o r e ig n la n g u a g e s w ith th e same f a c i l i t y w ith w hich th e 351 c h ild r e n e d u c a te d in s c h o o ls o f o th e r c o u n tr ie s speak and re a d f o r e ig n la n g u a g e s, i n o rd e r t h a t th e c h ild r e n o f t h i s S ta t e be a d e q u a te ly p re p a re d to u n d e rta k e t h e i r d u tie s a s A m erican c i t i z e n s in a w o rld i n w hich th e a b i l i t y to com m unicate w ith p e o p le s o f o th e r c o u n trie s i n t h e i r own to n g u e i s o f e v e r y - in c r e a s in g im p o rtan ce . S ec. 7605 Minimum Time R equirem ent in C e rta in C o u rs e s . A m in i mum o f 50 p e rc e n t o f e a c h sc h o o l week s h a l l b e d ev o ted to r e a d in g , w r i t i n g , lan g u ag e s tu d y , s p e ll in g , a r it h m e t ic , and c i v ic s in g ra d e s one to s i x , in c lu s iv e , and a minimum o f 600 m in u tes o f each s c h o o l week s h a ll be d ev o ted to su ch s u b je c ts i n g ra d e s se v e n and e ig h t. S ec. 7700 C ourse o f S tu d y f o r G rades 7 to 12 I n c l u s i v e . The c o u rs e o f s tu d y f o r g ra d e s 7 and 8 o f e a c h e le m e n ta r y s c h o o l, and f o r each ju n i o r h ig h s c h o o l, h ig h s c h o o l, o r g ra d e s 11 and 12 o f th e f o u r - y e a r ju n io r c o l le g e s h a l l be p re p a re d un d er th e d i r e c t i o n o f th e g o v ern in g bo ard h a v in g c o n tr o l th e r e o f and s h a l l be s u b je c t to th e a p p ro v a l o f th e S ta te B oard o f E d u c a tio n . The c o u rse o f stu d y s h a l l m eet th e re q u ire m e n t o f t h i s s e c t i o n . In a d d itio n to c o u rs e s o th e rw is e r e q u ir e d by law , th e c o u rse o f stu d y s h a l l r e q u ir e o f a l l p u p ils in g ra d e s 7 t o 12 in c lu s iv e : (a ) F iv e y e a rs o f i n s t r u c t i o n in th e u se o f E n g lis h , d e s ig n e d to te a c h th e s tu d e n t t o re a d r a p id l y and p e r c e p t iv e l y , to w r ite c l e a r l y and c o r r e c t l y , and to p r e s e n t id e a s o r a l l y . Such i n s t r u c t i o n s h a l l in c lu d e th e p r i n c i p l e s o f grammar and p u n c tu a tio n a s in s tru m e n ts o f re a d in g and w r i t i n g . A lso a c o re o f re a d in g d esig n ed to ^ fa m ilia r iz e th e s tu d e n t w ith th e v a r ie ty o f l i t e r a r y form s and to im prove h i s re a d in g a b i l i t y s h a l l be ta u g h t. (b ) F iv e y e a r s o f h i s t o r y commencing w ith g ra d e 7, to in c lu d e a l l o f th e fo llo w in g : (1 ) Twenty s e m e s te r p e r io d s o f A m erican h i s t o r y e m p h asizin g A m erican i n s t i t u t i o n s and id e a l s , and C a l if o r n ia h i s t o r y , (2 ) Twenty s e m e s te r p e r io d s o f w orld h i s t o r y , th e h i s t o r y o f W estern C i v i l i z a t i o n , and w orld g e o g ra p h y . (3 ) Ten s e m e s te r p e r io d s o f Am erican governm ent em p h asizin g p r i n c i p l e s o f th e C o n s titu tio n and th e D e c la r a tio n o f In d ep en d en ce, and th e p r i n c i p le s o f s t a t e and lo c a l governm ent u n d e r th e C o n s titu tio n o f t h i s S t a t e . F o r p u rp o se s o f th e h i s t o r y re q u ire m e n ts d e s c rib e d by s u b d iv is io n ( b ) , in th e c a s e o f sc h o o ls w hich a re n o t o p e r a te d on th e b a s is o f s e m e s te r p e r io d s , th e tim e d e v o te d to th e r e s p e c t iv e c o u rs e s s h a ll b e , a s n e a rly a s 352 p r a c t i c a b l e , th e e q u iv a le n t o f th e r e q u ir e d tim e a s m easu red in te rm s o f s e m e s te r p e r i o d s , and th e S t a t e B oard o f E d u c a tio n s h a l l by r e g u l a t i o n , p r e s c r ib e th e m anner in w hich tim e d u rin g th e s c h o o l y e a r s h a l l be a l l o c a t e d f o r su ch p u rp o se s in th o s e s c h o o ls . S e c . 7701 C ourse o f S tudy f o r G rades 7 and 8 and C e r ta in J u n io r H igh S c h o o ls . The c o u rs e o f s tu d y f o r g ra d e s 7 and 8 o f an e le m e n ta ry sc h o o l and f o r ju n i o r h ig h sc h o o l s h a l l be d e s ig n e d to f i t th e n eed s o f p u p ils o f th e 7 th an d 8 th , o r o f th e 7 th , 8 th , and 9 th ,“ o r o f th e 7 th , 8 th , 9 th , and 1 0 th g ra d e s and s h a l l be d e s ig n e d t o m eet th e r e q u i r e m ents o f S e c tio n 7700 so t h a t upon c o m p le tio n o f g ra d e 12 any p u p il w i l l have co m p leted th e c o u rs e s r e q u ir e d by S e c tio n 7700. S e c . 7702 C ourse o f S tudy f o r G rades 7 and 8 and C e r ta in J u n io r H igh S c h o o ls . The c o u rs e o f s tu d y f o r g ra d e s 7 and 8 o f an e le m e n ta ry sc h o o l and f o r ju n i o r h ig h s c h o o l c o m p risin g th e 7 th and 8 th g ra d e s o n ly s h a l l be d e sig n e d to f i t th e n e e d s o f p u p il s o f th e 7 th and 8 th g ra d e s b u t s h a l l be d e s ig n e d to m eet th e re q u ire m e n ts o f S e c tio n 7700 so t h a t upon c o m p le tio n o f g ra d e 12 any p u p il w i l l h av e co m p lete d th e c o u rs e s r e q u ir e d by S e c tio n 7700. S e c . 7752 C ourse o f Study f o r F o u r-Y e ar H igh S c h o o ls . The c o u rs e o f s tu d y f o r f o u r - y e a r h ig h s c h o o ls s h a l l b e d e s ig n e d to f i t th e n eed s o f p u p ils o f th e 9 th , 1 0 th , 1 1 th and 1 2 th g ra d e s o f th e p u b lic s c h o o ls and s h a l l b e d e s ig n e d to m eet th e re q u ire m e n ts o f S e c tio n 7700 so t h a t upon c o m p le tio n o f g ra d e 12 any p u p il w i l l h av e c o m p lete d th e c o u rs e s r e q u ir e d by S e c tio n 7 7 0 0 . S ec. 7753 C o n tin u a tio n H igh S ch o o l C o u rs e s . The c o u rs e f o r c o n tin u a tio n h ig h s c h o o ls s h a l l b e d e s ig n e d to f i t th e n e e d s o f m in o rs who a r e r e q u ir e d to a t te n d p a r t - t i m e c o n tin u a tio n c l a s s e s . S e c . 7754 C ourse o f S tu d y f o r S e n io r H igh S c h o o ls . The c o u rs e o f s tu d y f o r s e n io r h ig h s c h o o ls s h a l l b e d e s ig n e d to f i t th e n eed s o f p u p il s o f th e 1 0 th , 1 1 th , and 1 2 th o r o f th e 1 1 th and 1 2 th g ra d e s and s h a l l b e d e s ig n e d to m eet th e re q u ire m e n ts o f S e c tio n 7700 so t h a t upon c o m p le tio n o f g ra d e 12 any p u p il w i l l h av e c o m p lete d th e c o u rs e s r e q u ir e d by S e c tio n 7604 and S e c tio n 7 700. S ec. 7755 P r e p a r a tio n C ourses f o r C o lle g e s and U n iv e r s it y . Each h ig h sc h o o l d i s t r i c t s h a l l m a in ta in , i n one o r m ore o f i t s day h ig h s c h o o ls , a c o u rs e o f s tu d y d e s ig n e d to p re p a re 353 S ec. S ec. S ec. S ec. S ec. p r o s p e c tiv e s tu d e n ts f o r a d m is sio n to s t a t e c o lle g e s and th e s t a t e u n i v e r s i t y . 7851 T r a in in g o f P u p ils i n M o ra lity and C i t i z e n s h i p . Each te a c h e r s h a l l e n d e a v o r t o inqsress upon th e m inds o f p u p ils th e p r i n c i p l e s o f m o r a l it y , t r u t h , , j u s t i c e , and p a t r i o t i s m , to te a c h them to a v o id id l e n e s s , p r o f a n i t y , and f a ls e h o o d , to i n s t r u c t them i n th e p r i n c i p l e s o f a f r e e g o v ern m en t, and to t r a i n them up to a t r u e co m p reh en sio n o f th e r i g h t s , d u t i e s and d i g n i ty o f A m erican c i t i z e n s h i p . 7852 I n s t r u c t i o n in M anners and M o ra ls ; E f f e c ts o f A lc o h o l and N a r c o ti c s . I n s t r u c t i o n s h a l l be g iv e n in a i l g ra d e s o f s c h o o l and in a l l c l a s s e s d u rin g th e e n t i r e sc h o o l c o u r s e , m m anners and m o ra ls . I n s t r u c t i o n upon th e n a tu r e o f a lc o h o l and n a r c o t ic s and t h e i r e f f e c t s upon th e human sy ste m a s d e te rm in e d by s c ie n c e s h a l l be i n c lu d e d in th e c u rric u lu m o f a l l e le m e n ta ry and se c o n d a ry s c h o o ls . The g o v e rn in g b o a rd o f th e d i s t r i c t s h a l l a d o p t r e g u la tio n s s p e c if y in g th e g ra d e o r g ra d e s and th e c o u rs e o r c o u rs e s in w hich su ch i n s t r u c t i o n w ith r e s p e c t to a lc o h o l and n a r c o t i c s s h a l l be in c lu d e d . 7853 I n s t r u c t i o n on A lc o h o l and N a r c o ti c s . A ll p e rs o n s r e s p o n s ib le f o r th e p r e p a r a t io n o r e n fo rc e m e n t o f c o u rs e s o f s tu d y s h a l l p ro v id e f o r i n s t r u c t i o n on th e s u b je c ts o f a lc o h o l an d n a r c o t i c s . 7901 C o u rses i n H is to r y and G overnm ent. In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , th e r e s h a l l be g iv e n r e g u l a r c o u rs e s o f i n s t r u c t i o n i n th e C o n s tit u ti o n o f th e U n ite d S t a t e s , and in A m erican h i s t o r y , in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s . In a l l p u b lic and p r i v a t e s c h o o ls lo c a te d w ith in th e S t a t e , t h e r e s h a l l be g iv e n i n s t r u c t i o n i n th e Con s t i t u t i o n o f th e S ta t e o f C a l i f o r n i a , and in C a l i f o r n i a h i s t o r y and c i v i c s . 7902 G rade L ev el o f R e q u ire d C o u rs e s . I n s t r u c t i o n in th e c o u rs e s r e q u ir e d by S e c tio n 7901 s h a l l b e g in n o t l a t e r th a n th e o p e n in g o f th e e i g h th g ra d e and s h a l l c o n tin u e i n th e h ig h s c h o o l c o u rs e an d in c o u rs e s in s t a t e c o l le g e s , th e u n i v e r s i t i e s , and e d u c a tio n a l d e p a rtm e n ts o f s t a t e , m u n ic ip a l, and p r i v a t e i n s t i t u t i o n s , t o an e x te n t t o be d e te rm in e d by th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n . S ec. 7903 P r e r e q u i s i t e s to A dvanced C o u rs e s . B a sic i n s t r u c t i o n i n g e o g ra p h y , U n ite d S t a t e s h i s t o r y , c i v i c s , th e D e c la ra t i o n o f In d e p e n d e n c e , th e C o n s tit u ti o n o f th e U n ite d 354 S t a t e s , and in A m erican i n s t i t u t i o n s and id e a ls a s p re s c r ib e d by S e c tio n s 7901, 7902, and 7604 o f t h i s code s h a l l be p r e r e q u i s i t e to p a r t i c i p a t i o n by p u p ils in advanced c o u rs e s in v o lv in g th e stu d y o f p roblem s in s o c io lo g y , p o l i t i c a l s c ie n c e , eco nom ics, f o r e ig n tr a d e and f o r e ig n a f f a i r s . S ec. 8001 I n s t r u c t i o n in P u b lic S a fe ty and A cc id e n t P r e v e n tio n . I n s t r u c t i o n s h a l l be g iv e n in e v e ry e le m e n ta ry and se c o n d a ry sc h o o l in th e S ta t e i n th e s u b je c ts o f p u b lic s a f e t y and a c c id e n t p r e v e n tio n . S p e c ia l em phasis s h a l l be d ev o ted to th e a v o id an ce o f h a z a rd s upon s t r e e t s and h ig h w ay s. S e c . 8051 County B oards R eq u ired to P r e s c r ib e C o u rse . The b o a rd o f e d u c a tio n i n eac h c o u n ty , c i t y and c o u n ty , and c i t y , whose d u ty i t i s to p r e s c r ib e th e c o u rse o f s tu d y f o r th e e le m e n ta ry s c h o o ls o f th e c o u n ty , c i t y and c o u n ty , and c i t y s h a l l p r e s c r ib e a c o u rs e o f s tu d y in f i r e p re v e n tio n d e a lin g w ith th e p r o t e c t i o n o f l i v e s and p r o p e r ty a g a in s t lo s s and damage a s a r e s u l t o f p re v e n ta b le f i r e p u rs u a n t to t h i s a r t i c l e (commencing a t S ec. 8051) f o r a l l p u p ils e n r o lle d in th e day e l e m en tary s c h o o ls . S ec. 8052 H igh School B oards R eq u ired t o P r e s c r ib e C o u rse . The g o v e rn in g b o a rd o f eac h h ig h sc h o o l d i s t r i c t s h a l l p r e s c r ib e a s u i t a b l e c o u rs e o f f i r e p r e v e n tio n f o r a l l p u p ils e n r o lle d in th e day h ig h s c h o o l o f th e d i s t r i c t . S ec. 8053 Aims and P u rp o se s o f C ourses in F ir e P r e v e n tio n . The aim s and p u rp o se s o f th e c o u rs e s o f f i r e p r e v e n tio n s h a l l be a s fo llo w s : (a ) To c r e a te an u n d e rs ta n d in g o f th e c a u se and o r i g i n o f f i r e s . (b ) To em phasize th e d a n g e rs o f c a r e le s s n e s s and n e g le c t i n homes and p u b lic b u il d in g s , and th e n e c e s s it y o f c a re i n th e u se o f f i r e s . (c ) To prom ote an i n t e r e s t in p r e v e n tin g f i r e s and th e p r o te c tio n o f l i v e s and p r o p e r ty . S ec. 8056 I n s t r u c t i o n in F ir e P r e v e n tio n . Each te a c h e r in any p u b lic sc h o o l o f th e S ta t e s h a l l d e v o te a re a s o n a b le tim e in each m onth d u rin g w hich th e sc h o o l i s in s e s s io n to th e i n s t r u c t i o n o f th e p u p ils in th e c o u rse o f s tu d y and in f i r e p re v e n tio n c o m p risin g th e ways and means o f p r e v e n tin g lo s s and damage to l i v e s and p r o p e r ty th ro u g h p r e v e n ta b le f i r e s . 355 S ec. 8105 C om pulsory A utom obile D riv e r E d u c a tio n ; E x c e p tio n s . (a ) From and a f t e r th e e f f e c t i v e d a te o f t h i s amendment th e g o v e rn in g b o a rd o f ea c h d i s t r i c t m a in ta in in g a se c o n d a ry s c h o o l s h a l l p ro v id e a u to m o b ile d r i v e r e d u c a tio n f o r p u p ils e n r o ll e d in th e r e g u la r f u l l tim e day se c o n d a ry s c h o o ls i n th e d i s t r i c t . Such d r i v e r e d u c a tio n s h a l l be g iv e n in one o f th e g ra d e s 9 , 10, 1 1 , o r 12 i n e v e ry su ch se c o n d a ry s c h o o l b u t n eed n o t be g iv e n i n any su ch se c o n d a ry sc h o o l w hich te r m in a te s w ith th e n in t h o r te n t h g ra d e . Such d r i v e r e d u c a tio n s h a l l be g iv e n a l l su ch p u p ils p r i o r to g r a d u a tio n from th e tw e l f t h g ra d e e x c e p t a s o th e rw is e p e r m itte d u n d e r t h i s s e c t i o n . (b ) A p u p il who h a s co m p leted su c h d r i v e r e d u c a tio n in any se c o n d a ry s c h o o l s h a l l n o t be r e q u ir e d to r e p e a t su c h d r i v e r e d u c a tio n in a n o th e r se c o n d a ry sc h o o l in th e same o r a n o th e r d i s t r i c t . (c ) The g o v e rn in g b o a rd o f a d i s t r i c t may g r a n t su ch ex em p tio n s a s i t d e te rm in e s to be d e s i r a b l e in r e s p e c t t o tw e l f t h g ra d e p u p il s who t r a n s f e r to a sc h o o l in su ch d i s t r i c t in w hich d r i v e r e d u c a tio n i s g iv e n in a lo w er g ra d e . (d ) N o tw ith s ta n d in g th e fo re g o in g p r o v is io n s o f t h i s s e c t i o n th e g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t may make a p p l i c a t i o n t o th e S t a t e D epartm ent o f E d u c a tio n f o r a p a r t i a l o r t o t a l ex em p tio n d u rin g eac h s u c c e e d in g sc h o o l y e a r in r e s p e c t t o one o r more o f th e s c h o o ls in th e d i s t r i c t from th e re q u ire m e n t t h a t th e d i s t r i c t m a in ta in a u to m o b ile d r i v e r e d u c a tio n in th e sc h o o l o r s c h o o ls named i n th e a p p l i c a t i o n . The a p p l i c a t i o n may be g r a n te d by th e S t a t e D epartm ent o f E d u c a tio n o n ly when i t d e te rm in e s upon th e b a s i s o f th e a p p l i c a t i o n t h a t i t i s n o t p r a c t i c a l f o r good and s u f f i c i e n t re a s o n s to m a in ta in d r i v e r e d u c a tio n in any d e s ig n a te d sc h o o l o r s c h o o ls . S ec. 8155 Aims and P u rp o se s o f C o u rses in P h y s ic a l E d u c a tio n . The aim s and p u rp o s e s o f th e c o u rs e s o f p h y s ic a l e d u c a tio n e s t a b l i s h e d s h a l l be a s fo llo w s : (a ) To d ev elo p o r g a n ic v i g o r . (b ) To p ro v id e n e u ro m u sc u la r t r a i n i n g . (c ) To prom ote b o d ily and m e n ta l p o is e . (d ) To c o r r e c t p o s t u r a l d e f e c t s . (e ) To s e c u re th e more ad v anced form s o f c o - o r d in a tio n , s t r e n g t h , and e n d u ra n c e . ( f ) To prom ote su ch d e s i r a b l e m o ral and s o c i a l q u a l i t i e s a s a p p r e c ia ti o n o f th e v a lu e o f c o - o p e r a tio n , s e l f s u b o r d in a tio n , and o b e d ie n c e to a u t h o r i t y , and h ig h e r i d e a l s , c o u ra g e and w holesom e i n t e r e s t in t r u l y r e c r e a t i o n a l a c t i v i t i e s . 356 (g ) To prom ote a h y g ie n ic s c h o o l and home l i f e . (h ) To s e c u re a s c i e n t i f i c s u p e r v is io n o f th e s a n i t a t i o n and s a f e ty o f sc h o o l b u i l d i n g s , p la y g ro u n d s , and a t h l e t i c f i e l d s , and th e eq uipm ent th e r e o f . S ec. 8156 P h y s ic a l E d u c a tio n C o u rses f o r P u p ils in E lem en tary S c h o o ls . The b o a rd o f e d u c a tio n o f e a c h c o u n ty , c i t y and c o u n ty , and c i t y , w hose d u ty i t i s to p r e s c r i b e th e c o u rs e o f s tu d y f o r th e e le m e n ta ry s c h o o ls o f th e c o u n ty , c i t y and c o u n ty , o r c i t y , s h a l l p r e s c r ib e s u i t a b l e c o u rs e s o f p h y s ic a l e d u c a tio n f o r a l l p u p ils e n r o l l e d in th e day e le m e n ta ry s c h o o ls , e x c e p t p u p ils who may be ex cu sed i n a c c o rd a n c e w ith th e p r o v is io n s - o f S e c tio n s 8132 to 8164, i n c l u s i v e . S ec. 8157 C ourses o f P h y s ic a l E d u c a tio n in S eco n d ary S c h o o ls . The g o v e rn in g b o a rd o f e a c h sc h o o l d i s t r i c t m a in ta in in g a se c o n d a ry s c h o o l s h a l l p r e s c r i b e s u i t a b l e c o u rs e s o f p h y s ic a l e d u c a tio n f o r a l l p u p ils e n r o ll e d in th e day se c o n d a ry s c h o o ls in th e d i s t r i c t , e x c e p t p u p ils who may b e e x c u s e d . S ec. 8159 Minimum I n s t r u c t i o n in E le m e n ta ry S c h o o ls . A ll p u p il s e n r o ll e d in th e e le m e n ta ry s c h o o ls , e x c e p t p u p il s e x c u se d , s h a l l be r e q u ir e d to a t te n d upon th e c o u rs e s o f p h y s ic a l e d u c a tio n f o r an i n s t r u c t i o n a l p e r io d in e a c h s c h o o l day w hich s h a l l n o t be l e s s th a n 20 m in u tes e x c l u s i v e o f r e c e s s e s and lu n c h p e r io d . S ec. 8160 Minimum I n s t r u c t i o n in J u n io r and S e n io r High S c h o o ls . A ll p u p ils e n r o l l e d in th e ju n i o r o r s e n io r h ig h s c h o o ls , e x c e p t p u p ils e x c u se d , s h a l l b e r e q u ir e d t o a tte n d upon th e c o u rs e s o f p h y s ic a l e d u c a tio n f o r an i n s t r u c t i o n a l p e r io d in e a c h s c h o o l day w hich s h a l l be n o t le s s th a n th e le n g th o f th e r e g u la r academ ic p e r io d s o f th e s c h o o l. S ec. 11002 Maximum S ch o o l Day in K in d e rg a rte n and G rades One and Two. No p u p il in a k in d e r g a r te n o r i n g ra d e s one o r two s h a l l be k e p t in s c h o o l in any day more th a n fo u r h o u rs e x c lu s iv e o f r e c e s s e s . S ec. 11003 Minimum S ch o o l Day f o r K in d e rg a rte n and S e v e re ly M e n ta lly R e ta rd e d P u p i l s . The minimum sc h o o l day f o r p u p il s o f k in d e r g a r te n s , and f o r m e n ta lly r e ta r d e d m in o rs in s p e c ia l t r a i n i n g s c h o o ls o r c l a s s e s p r e s c r ib e d in S e c tio n 6903, i s 180 m in u te s i n c lu s iv e o f r e c e s s e s e x c e p t t h a t i f a s c h o o l d i s t r i c t m a in ta in s two such c l a s s e s on th e same day w hich a r e ta u g h t by th e same te a c h e r , th e minimum s c h o o l day f o r e a c h o f such c l a s s e s s h a l l be 130 m in u te s in c l u s i v e o f r e c e s s e s . 357 S ec. S ec. S ec. S ec. S ec. S ec. S ec. S ec. S ec. 11005 Minimum School Day f o r G rades One, Two and T h re e . The minimum sc h o o l day in g ra d e s o n e, tw o, and th r e e in e le m e n ta ry sc h o o ls i s 200 m in u te s . 11006 Minimum School Day f o r G rades Four Through E ig h t. The minimum s c h o o l day in g ra d e s f o u r , f i v e , s i x , se v e n , and e ig h t i n e le m e n ta ry s c h o o ls and in s p e c ia l day and e v e n in g c l a s s e s o f a n e le m e n ta ry sc h o o l d i s t r i c t i s 240 m in u te s . 11052 Minimum School D ay. The minimum sc h o o l day i n any h ig h s c h o o l, e x c e p t i n an ev e n in g h ig h s c h o o l, a c o n tin u a t i o n h ig h s c h o o l, and in c o n tin u a tio n e d u c a tio n c l a s s e s , i s 240 m in u te s . 11053 Minimum School Day f o r C o n tin u a tio n E d u c a tio n . In c o n tin u a tio n h ig h s c h o o ls and c o n tin u a tio n e d u c a tio n c l a s s e s , a day o f a tte n d a n c e i s 180 m in u te s o f a tte n d a n c e b u t no p u p il in any such sc h o o l o r c l a s s s h a l l be c r e d i t e d w ith more th a n 15 h o u rs o f a tte n d a n c e in any c a le n d a r w eek. 11104 Day o f A tte n d a n c e f o r G rades E lev en and T w elve. A day o f a tte n d a n c e i n g ra d e s 11 and 12 i s 180 m in u te s o f a tte n d a n c e . 11952 F ie ld T r i p s . The te a c h e r , a g e n t, o r em ployee s h a l l have th e f i r s t a id k i t in h i s p o s s e s s io n , o r im m ed iately a v a i l a b l e , w h ile c o n d u c tin g th e f i e l d t r i p . 11954 Snake B ite K its on F ie ld T r i p s . Whenever a f i e l d t r i p i s co n d u cted i n t o an a r e a w hich i s commonly known to be i n f e s t e d by p o iso n o u s sn a k e s , th e f i r s t a id k i t s h a l l in c lu d e a sn ak e b i t e k i t . 12152 P h y s ic a l o r M en tal C o n d itio n . C h ild re n whose p h y s i c a l o r m e n ta l c o n d itio n i s su c h as to p r e v e n t, o r re n d e r in a d v is a b le a tte n d a n c e a t s c h o o l o r a p p l ic a t io n to s tu d y s h a l l be exem pted, b u t th e g o v e rn in g b o ard o f th e sc h o o l d i s t r i c t may r e q u ir e s a t i s f a c t o r y e v id e n c e o f th e c o n d itio n to be f u r n is h e d . 12821 T e s tin g Program to In c lu d e A chievem ent and I n t e l l i gence T e s t s . The S ta te B oard o f E d u c a tio n s h a l l r e q u ir e a t e s t i n g program in a l l sc h o o l d i s t r i c t s and s h a l l a d o p t r u le s and r e g u la tio n s g o v e rn in g th e fre q u e n c y and m ethods o f a d m in is tr a tio n o f th e t e s t i n g p ro g ram s. The S ta t e Board o f E d u c a tio n s h a l l c e r t i f y an approved l i s t o f ach iev em en t and i n t e l l i g e n c e t e s t s , one o r more o f w hich t e s t s s h a l l be u sed i n a l l t e s t i n g program s 358 e x c e p t as p ro v id e d in S e c tio n 12824. T h is l i s t may be r e v is e d from tim e to tim e . The l i s t s h a l l in c lu d e two o r m ore a l t e r n a t i v e i n t e l l i g e n c e t e s t s and th e g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t o r th e c o u n ty b o a rd o f e d u c a t i o n , as th e c a s e may b e , s h a l l s e l e c t , from th e i n t e l l i g en ce t e s t s l i s t e d , th e p a r t i c u l a r i n t e l l i g e n c e t e s t o r t e s t s to be u se d in th e d i s t r i c t . W henever th e S ta te B o ard o f E d u c a tio n d e te rm in e s to in c lu d e on th e l i s t a n ach iev em en t t e s t r e l a t i n g to a p a r t i c u l a r c o u rs e o f s tu d y o r a p a r t i c u l a r group o f c o u rs e s o f s tu d y , th e b o a rd s h a l l a l s o in c lu d e one o r m ore a l t e r n a t i v e a c h ie v e m ent t e s t s f o r su ch c o u rs e o r group o f c o u rs e s and th e g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t o r th e co u n ty b o a rd o f e d u c a tio n , a s th e c a s e may b e , s h a l l s e l e c t , from th e ach iev em en t t e s t s l i s t e d , th e p a r t i c u l a r t e s t o r t e s t s t o be u se d in th e d i s t r i c t . S e c . 12822 D i s t r i c t G overning B oards to I n s t i t u t e ProR ram . The g o v e rn in g b o a rd o f e a c h d i s t r i c t s h a l l , i n a c c o rd a n c e w ith th e r u l e s and r e g u l a t i o n s o f th e S t a t e B oard o f E d u c a tio n , i n s t i t u t e a t e s t i n g p rogram in th e d i s t r i c t an d s h a l l , e x c e p t a s o th e rw is e p ro v id e d in t h i s s e c t i o n , s e l e c t from th e ap p ro v ed l i s t th e a ch iev em en t and i n t e l l i g e n c e t e s t s to be u s e d in th e t e s t i n g program . The co u n ty b o a rd o f e d u c a tio n s h a l l s e l e c t from th e ap p ro v ed l i s t o f ach ie v e m e n t and i n t e l l i g e n c e t e s t s th e t e s t s to be u s e d in th e t e s t i n g p rogram o f eac h elem en t a r y d i s t r i c t w hich had l e s s th a n 901 u n i t s o f a v e ra g e d a i l y a tte n d a n c e d u rin g th e p re c e d in g f i s c a l y e a r and e a c h u n i f i e d d i s t r i c t w h ich had l e s s th a n 1501 u n i t s o f a v e ra g e d a i l y a tte n d a n c e d u rin g th e p re c e d in g f i s c a l y e a r , w hich d i s t r i c t i s u n d e r th e j u r i s d i c t i o n o f th e c o u n ty s u p e r in te n d e n t o f s c h o o ls o f th e c o u n ty . S e c . 12823 A nnual R e p o rt o f T e s t R e s u l t s . Upon r e q u e s t o f th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n , th e g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t s h a l l p ro v id e th e S ta t e D epartm ent o f E d u c a tio n w ith th e r e s u l t s o f any t e s t i n g p ro g ram c o n d u c te d in th e s c h o o l d i s t r i c t upon form s w h ich th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n may p r e s c r i b e . No r e s u l t s w hich i d e n t i f y th e s c h o o l o r sc h o o l d i s t r i c t s h a l l b e made p u b li c by th e S u p e rin te n d e n t o f P u b lic I n s t r u c t i o n w ith o u t th e w r i t t e n c o n s e n t o f th e g o v e rn in g b o a rd o f th e d i s t r i c t . The d i s t r i c t - w i d e r e s u l t s o f th e t e s t i n g p ro g ram , b u t n o t th e s c o re o r r e l a t i v e p o s i t i o n o f in d i v id u a l p u p il s s h a l l be r e p o r te d to th e g o v e rn in g b o a rd o f th e d i s t r i c t a t l e a s t once a y e a r a t a r e g u l a r l y s c h e d u le d m e e tin g . 359 I I . THE CONSTITUTION P r o h ib ite d R equirem ent A r tic l e IV, P u b lic Aid f o r S e c ta r ia n P u rp o se s P r o h ib it e d . S ec. 30 N e ith e r th e L e g i s la tu r e , n o r any c o u n ty , c i t y and c o u n ty , to w n sh ip , sc h o o l d i s t r i c t , o r o th e r m u n ic ip a l c o r p o r a tio n s h a l l e v e r make an a p p r o p r ia tio n o r pay from any p u b lic fund w h a te v e r, o r g r a n t a n y th in g to o r i n a id o f any r e l i g i o u s s e c t , c h u rc h , c re e d , o r s e c t a r i a n p u rp o s e , o r h e lp to s u p p o rt o r s u s t a i n any s c h o o l, c o l le g e , u n i v e r s i t y , h o s p i t a l , o r o th e r i n s t i t u t i o n c o n t r o l le d by any r e l i g i o u s c re e d , c h u rc h , o r s e c t a r i a n d e n o m in atio n w h a te v e r; n o r s h a l l any g ra n t o r d o n a tio n o f p e rs o n a l p r o p e r ty o r r e a l e s t a t e e v e r be made by th e S t a t e , o r any c i t y , c i t y and c o u n ty , tow n, o r o th e r m u n ic ip a l c o r p o r a tio n f o r any r e l i g i o u s c r e e d , c h u rc h , o r s e c t a r i a n p u rp o se w h a te v e r; p ro v id e d t h a t n o th in g i n t h i s s e c ti o n s h a l l p re v e n t th e L e g is l a t u r e g r a n tin g a i d p u rs u a n t to S e c tio n 22 o f t h i s a r t i c l e . I I I . ADMINISTRATIVE CODE R eq u irem en ts in T i t l e F iv e — E d u c a tio n S ec. 24 M oral S u p e r v is io n . P r in c i p a ls and te a c h e r s s h a l l e x e r c is e c a r e f u l s u p e r v is io n o v e r th e m o ral c o n d itio n i n t h e i r r e s p e c t iv e s c h o o ls . G am bling, im m o ra lity , p ro f a n i t y , fr e q u e n tin g p u b lic p o o l room s, th e u se o f to b a c c o , n a r c o t ic s and i n t o x i c a t i n g liq u o r s on th e s c h o o l g ro u n d s, o r e lse w h e re on th e p a r t o f p u p ils s h a l l n o t be t o l e r a t e d . S ec. 73 F la g S h a ll Have P ro p e r C a re . P r in c i p a ls and te a c h e r s s h a l l te a c h p u p ils t o h o n o r and c a re f o r th e F la g t o th e end t h a t i t may be t r e a t e d w ith r e s p e c t and h a n d le d w ith re v e re n c e a t a l l tim e s . S ec. 7 3 .5 A c t i v i t i e s w ith R e sp e c t to th e F la g . The g o v e rn in g b o a rd o f eac h s c h o o l d i s t r i c t s h a l l r e q u i r e , and p ro v id e f o r , th e g iv in g o f a p p r o p r ia te i n s t r u c t i o n th ro u g h o u t th e sc h o o l te rm and th e h o ld in g o f a p p r o p r ia te e x e r c is e s o r o th e r a c t i v i t i e s i n eac h sc h o o l u n d e r i t s j u r i s d i c t i o n d u rin g th e l a s t week o f th e a n n u a l sc h o o l te rm o f th e sc h o o l w hich s h a l l em phasize to th e p u p ils o f th e sc h o o l th e m eaning o f th e F la g o f th e U n ite d S ta te s and th e p u rp o s e s , i d e a l s , and freedom s f o r w hich i t s ta n d s . T here s h a l l b e d a ily p le d g e o f a l le g ia n c e to 360 th e F la g o f th e U n ite d S ta t e s i n e a c h p u b lic sc h o o l c o n d u c te d i n a c c o rd a n c e w ith th e r e g u la tio n w hich s h a l l be a d o p te d by ea c h g o v e rn in g b o a rd . S e c . 96 P rogram o f S tu d ie s in S eco n d ary S c h o o ls . The g o v e rn in g b o a rd o f e a c h s c h o o l d i s t r i c t m a in ta in in g one o r m ore se c o n d a ry sc h o o l s h a l l e s t a b l i s h and m ain t a i n u n i f i e d c o u rs e s o f s tu d y d e sig n e d to f i t th e n eed s o f p u p ils a d m itte d t o th e s c h o o l o r s c h o o ls o f as many y e a r s in le n g th a s th e g ra d e s m a in ta in e d and c o u rs e s o f i n s t r u c t i o n f o r th e c i v i c and l i b e r a l e d u c a tio n o f th e c i t i z e n s o f th e com m unity. The S t a t e D epartm ent o f E d u c a tio n s h a l l ap p ro v e th e c o u rs e o f s tu d y a d o p te d by th e g o v e rn in g b o a rd . S e c . 97 R e q u ire d I n s t r u c t i o n in S econdary S c h o o ls . The g o v e rn in g b o a rd o f ea c h s c h o o l d i s t r i c t m a in ta in in g one o r m ore se c o n d a ry s c h o o ls s h a l l p r e s c r ib e c o u rs e s o f i n s t r u c t i o n w hich s h a l l be r e q u ir e d o f a l l p u p ils and w h ic h , i n a d d i t i o n t o in c lu d in g th o s e r e q u ir e d by law , s h a l l in c lu d e c o u rs e s o f i n s t r u c t i o n : (a ) In th e u s e o f E n g lis h t o prom ote th e s a t i s f a c t o r y m a ste ry o f o r a l and w r i t t e n E n g lis h . (b ) The g o v e rn in g b o a rd o f th e s c h o o l d i s t r i c t s h a l l p ro v id e c o u rs e s o f i n s t r u c t i o n in th e C o n s tit u ti o n o f th e U n ite d S t a t e s , and i n A m erican h i s t o r y , in c lu d in g th e stu d y o f A m erican i n s t i t u t i o n s and i d e a ls and o f th e p r i n c i p l e s o f s t a t e and lo c a l governm ent e s ta b l i s h e d u n d e r th e C o n s tit u ti o n o f t h i s S t a t e , i n le n g th n o t l e s s th a n 15 s e m e s te r p e r io d s i n e v e ry ju n i o r h ig h s c h o o l, s e n io r h ig h s c h o o l, and fo u r y e a r h ig h s c h o o l; and in e v e ry j u n i o r c o lle g e f o r a t l e a s t th r e e c r e d i t h o u r s . (1 ) A s e m e s te r p e r io d i s d e fin e d a s one p e r io d o f 40 to 60 m in u te s p e r week th ro u g h o u t one s e m e s te r o f n o t l e s s th a n 17 w eeks. S e c . 102 R e q u irem en ts f o r G ra d u a tio n from S econdary S c h o o l. ( a ) The g o v e rn in g b o a rd o f a s c h o o l d i s t r i c t m a in ta in in g a se c o n d a ry s c h o o l s h a l l a u th o r iz e to g r a d u a te , from any se c o n d a ry s c h o o l, any p u p il o f good c h a r a c te r and c i t i z e n s h i p who s a t i s f a c t o r i l y co m p le te s th e f u l l c u rric u lu m p r e s c r ib e d f o r th e s c h o o l in w hich th e p u p il i s r e g u l a r l y e n r o ll e d and in a tte n d a n c e a t th e tim e o f c o m p le tio n o f h is w ork, in c lu d in g i n s t r u c t i o n in th e C o n s t i t u t i o n 'o f th e U n ite d S t a t e s , and in A m erican h i s t o r y in c lu d in g th e s tu d y o f A m erican i n s t i t u t i o n s and i d e a l s , and o f th e p r i n c i p l e s o f s t a t e and l o c a l governm ent e s t a b l i s h e d u n d e r th e C o n s tit u ti o n o f t h i s 361 S t a t e , and th e s u c c e s s f u l p a s s in g o f an e x a m in a tio n _ th e re o n . (b) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t m a in ta in in g a fo u r y e a r o r s e n io r h ig h sc h o o l s h a l l g ra n t diplom a o f h ig h sc h o o l g ra d u a tio n f o r th e c o m p le tio n o f a c o u rse o f s tu d y o r c u rric u lu m w hich in c lu d e s no t le s s th a n 190 s e m e s te r p e rio d s and n o t more th a n 240 s e m e s te r p e rio d s o f c la ssro o m i n s t r u c t i o n and s u p e r v is e d le a r n in g , in c lu d in g work e x p e rie n c e . (1 ) A s e m e s te r p e r io d i s d e fin e d a s one p e r io d o f 40-60 m in u tes p e r week th ro u g h one s e m e s te r o f n o t l e s s th a n 17 w eeks. When a sc h o o l i s / o p e r a tin g on a minimum sc h o o l day ( f o u r c lo c k h o u rs ) a d ju stm e n ts i n le n g th o f p e r io d o r number o f p e rio d s p e r week may be made w ith o u t r e d u c tio n o f th e number o f s e m e s te r p e rio d s w hich w ould o th e rw is e be c r e d i t e d . (c ) O m itted . (d ) The g o v e rn in g b o ard o f a s c h o o l d i s t r i c t m a in ta in in g a seco n d ary sc h o o l s h a l l aw ard th e a p p r o p r ia te diplom a o r d e g re e w henever a p u p il s h a l l have com pleted a l l re q u ire m e n ts o f a f u l l c u rric u lu m o f th e seco n d ary sc h o o l w ith o u t re g a rd to th e le n g th o f tim e a c t u a ll y ta k e n by th e p u p il to co m p lete su ch re q u ire m e n ts . (1 ) The g o v e rn in g b o a rd o f a sc h o o l d i s t r i c t s h a ll g ra n t to any p u p il who s a t i s f a c t o r i l y co m p letes th e re q u ire m e n ts o f any c o u rse o f s tu d y in le s s th a n th e p r e s c r ib e d tim e , th e f u l l number o f se m e s te r p e rio d s o r c r e d i t h o u rs sc h e d u le d fo r such c o u r s e . (e ) The g o v e rn in g b o ard o f a sc h o o l d i s t r i c t m a in ta in in g a seco n d ary sc h o o l s h a l l is s u e a c e r t i f i c a t e o f c o m p le tio n to any p u p il who s u c c e s s f u lly co m p letes any c o u rse o f stu d y o r c u rric u lu m in le n g th l e s s th a n th e f u l l number o f y e a rs and g ra d e s m a in ta in e d by th e s c h o o l. ( f ) The g o v e rn in g b o ard o f a sc h o o l d i s t r i c t m a in ta in in g a h ig h s c h o o l s h a l l r e q u ir e any p u p il p u rs u in g a v o c a tio n a l c u rric u lu m i n a f o u r - y e a r o r s e n io r h ig h sc h o o l to co m p lete in a s p e c i f i c v o c a tio n a l f i e l d a seq u en ce o f c o u rs e s o f stu d y app ro v ed by th e S ta te D epartm ent o f E d u c a tio n . (g ) The g o v e rn in g b o ard o f a sc h o o l d i s t r i c t m a in ta in in g a h ig h sc h o o l may aw ard a diplom a o f g ra d u a tio n to a p e rs o n h o n o ra b ly d is c h a rg e d from th e arm ed fo rc e s o f th e U n ite d S ta te s who: (1 ) E n te re d a c t iv e s e r v ic e in su ch arm ed fo rc e s su b se q u e n t to Septem ber 16, 1940, and se rv e d t h e r e in f o r n o t l e s s th a n 90 days and 362 (2 ) C om pleted T e s ts o f G e n e ra l E d u c a tio n D evelop m ent (h ig h sc h o o l l e v e l ) p re p a re d by th e A m erican C o u n c il on E d u c a tio n w ith an a v e ra g e s ta n d a rd s c o r e o f 4 5 , o r a b o v e , on th e f i v e t e s t s in th e b a t t e r y and w ith a s ta n d a r d s c o re o f 35, o r ab o v e, on e a c h o f th e f iv e t e s t s in th e b a t t e r y , and (3 ) Has met t h e s t a t e l e g a l re q u ire m e n t o f U n ite d S ta te s h i s t o r y and U n ite d S ta t e s C o n s titu tio n in a d d i tio n to th e re q u ire m e n ts p r e s c r ib e d by th e g o v e rn in g b o ard o f th e h ig h s c h o o l g r a n tin g th e d ip lo m a . S e c . 1 0 2 .1 F i r s t A id I n s t r u c t i o n R e q u ire d . In a l l se c o n d a ry s c h o o ls , i n s t r u c t i o n in th e p r i n c i p l e s and p r a c t i c e o f f i r s t a id s h a l l be r e q u ir e d f o r g r a d u a tio n , e x c e p t f o r a p u p i l whose p a r e n ts o r g u a rd ia n s t a t e in w r iti n g th a t s u c h i n s t r u c t i o n i s c o n tr a r y to t h e i r r e l i g i o u s b e l i e f s . S ec. 173 A utom obile D r iv e r E d u c a tio n . ( a ) A c o u rs e o f i n s t r u c t i o n in a u to m o b ile d r i v e r e d u c a tio n s h a l l in c lu d e i n s t r u c t i o n by a q u a l i f i e d i n s t r u c t o r o f n o t l e s s th a n 30 c l a s s h o u rs i n th e fo llo w in g a r e a s : (1 ) D riv in g i s y o u r r e s p o n s i b i l i t y . (2 ) The d r i v e r . (3 ) N a tu ra l f o r c e s a f f e c t i n g d r iv i n g . (4 ) M aking, o b s e rv in g , an d e n f o r c in g t r a f f i c la w s. (5 ) The C a l i f o r n i a V e h ic le Code. (6 ) M ajor c a u s e s o f a c c id e n t s . (b ) A c l a s s h o u r i n a c o u rs e o f i n s t r u c t i o n in a u to m o b ile d r iv e r e d u c a tio n s h a l l be o f th e same le n g th a s a c l a s s h o u r f o r a r e g u la r academ ic c l a s s . (c ) A c o u rs e o f i n s t r u c t i o n i n a u to m o b ile d r i v e r e d u c a tio n s h a l l b e co m p lete d by a s tu d e n t w ith in one sc h o o l y e a r . APPENDIX G DISTRIBUTION O F RESPONSES REGARDING P R O B L E M S T H A T RESULTED F R O M SPECIFIC LEG AL REQ UIREM ENTS 364 TABLE 7 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 8452 E d u c a tio n Code R egion S o u th e rn C e n tra l N o rth e rn 0 2 0 Type E lem en tary H igh S chool U n ifie d 2 0 0 S iz e S ta te Sm all Medium L arge T o ta l 1 0 1 8454 E d u c a tio n Code R egion S o u th e rn C e n tr a l N o rth e rn 3 0 0 3 3 .3 0.0 0.0 Type E lem en tary H igh S chool U n ifie d 1 1 1 11.1 11.1 11.1 71 E d u c a tio n Code S iz e S ta te R egion Sm all Medium L arge T o ta l S o u th e rn C e n tra l N o rth e rn 0 1 2 1 0 0 0.0 11.1 22.2 11.1 11.1 0.0 0.0 Type E lem en tary H igh S chool U n ifie d 1 0 0 11.1 0.0 0.0 S iz e State Sm all Medium L arge Total 0 0 1 0.0 0.0 11.1 3.7 TABLE 7 (continued) 365 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C la s s i f i c a t i o n Num b e r P e r c e n t 5203 E d u c a tio n Code R egion S iz e S t a t e S o u th e rn C e n tr a l N o rth e rn Type E lem en tary H igh S ch o o l U n ifie d Sm all Medium L arg e T o ta l 2 1 2 1 3 1 1 2 2 22.2 11.1 22.2 11.1 3 3 .3 11.1 11.1 22.2 22.2 1 8 .5 5205 E d u c a tio n Code 5206 E d u c a tio n Code R egion Type S iz e S t a t e R eg io n Type S iz e State S o u th e rn C e n tra l N o rth e rn E le m e n ta ry H igh S ch o o l U n ifie d Sm all Medium L arge T o ta l S o u th e rn C e n tr a l N o rth e rn E le m e n ta ry H igh S chool U n ifie d Sm all Medium L arge Total 2 2 4 2 2 4 3 2 3 1 4 4 2 2 5 2 3 4 22.2 22.2 4 4 .4 2 9 .6 11.1 4 4 .4 4 4 .4 22.2 22.2 5 5 .5 22.2 3 3 .3 4 4 .4 33.3 TABLE 7 (continued) 366 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P er c e n t 5211 E d u c a tio n Code R egion S o u th e rn C e n tr a l N o rth e rn 1 0 4 Type E lem en tary H igh S chool U n ifie d 0 3 2 S iz e S ta t e Sm all Medium L arg e T o ta l 0 3 2 18.5 5952 E d u c a tio n Code R egion S o u th e rn C e n tr a l N o rth e rn 2 0 4 22.2 0.0 4 4 .4 Type E le m e n ta ry H igh S chool U n ifie d 0 3 3 0.0 3 3 .3 3 3 .3 S iz e S t a t e Sm all Medium L arge T o ta l 1 2 3 11.1 22.2 33 .3 22.2 7551 E d u c a tio n Code R egion S o u th e rn C e n tr a l N o rth e rn 4 1 4 4 4 .4 11.1 4 4 .4 Type E le m e n ta ry H igh S chool U n ifie d 3 2 4 3 3 .3 22.2 4 4 .4 S iz e Sm all Medium L arg e 3 3 3 State Total 33.3 TABLE 7 (continued) 367 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Num- P er Number Code C l a s s i f i c a t i o n b e r c e n t 7552 E d u c a tio n Code R egion Type S iz e S ta t e 7553 E d u c a tio n Code R egion Type S iz e S ta t e 7601 E d u c a tio n Code R egion Type S iz e State S o u th e rn 0 0 .0 C e n tr a l 1 1 1.1 N o rth e rn 0 0 .0 E lem en tary 1 1 1.1 H igh S chool 0 0 .0 U n ifie d 0 0 .0 Sm all 0 0 .0 Medium 1 1 1.1 L arg e 0 0 .0 T o ta l 1 3 .7 S o u th e rn 0 0 .0 C e n tr a l 1 11 .1 N o rth e rn 2 2 2 .2 E lem en tary 2 2 2 .2 H igh S chool 1 1 1 .1 U n ifie d 0 0 .0 Sm all 2 2 2 .2 Medium 1 1 1 .1 L arg e 0 0 .0 T o ta l 3 11.1 S o u th e rn 0 0 .0 C e n tr a l 0 0 .0 N o rth e rn 1 1 1.1 E lem en tary 0 0 .0 H igh School 0 0 .0 U n ifie d 1 11 .1 Sm all 0 0 .0 Medium 0 0 .0 L arge 1 11 .1 T o ta l 1 3 .7 TABLE 7 (continued) 368 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 7604 E d u c a tio n Code R egion S o u th e rn 6 6 6 .6 C e n tra l 6 6 6 .6 N o rth e rn 5 5 5 .5 Type E lem entary 8 8 8 .8 H igh S chool 1 1 1 .1 U n ifie d 8 8 8 .8 S ice Sm all 4 4 4 .4 Medium 7 77 .7 L arge 6 6 6 .6 S ta te T o ta l 17 6 2 .9 7605 E d u c a tio n Code R egion S o u th e rn 4 4 4 .4 C e n tra l 1 1 1 .1 N o rth e rn 1 1 1 .1 Type E lem en tary 2 2 2 .2 H igh School 0 0 .0 U n ifie d 4 4 4 .4 S iz e Sm all 1 1 1 .1 Medium 3 3 3 .3 L arge 2 2 2 .2 S ta te T o ta l 6 2 2 .2 7700 E d u c a tio n Code R egion S o u th e rn 5 5 5 .5 C e n tra l 4 4 4 .4 N o rth e rn 4 4 4 .4 Type E lem en tary 1 1 1 .1 H igh School 5 5 5 .5 U n ifie d 7 7 7 .7 S iz e Sm all 2 2 2 .2 Medium 4 4 4 .4 L arge 7 7 7 .7 S ta te T o ta l 13 4 8 .1 TABLE 7 (continued) 369 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 7851 E d u c a tio n Code Region S o u th e rn C e n tr a l N o rth e rn 1 0 0 11.-1 0.0 0.0 Type E lem en tary H igh S chool U n ifie d 0 0 1 0.0 0.0 11.1 S ix e S ta te Small Medium L arge T o ta l 1 0 0 11.1 0.0 0.0 3 .7 7852 E d u c a tio n Code Region S o u th e rn C e n tr a l N o rth e rn 6 5 0 66.6 5 5 .5 0.0 Type E lem en tary High S chool U n ifie d 3 3 5 3 3 .3 3 3 .3 5 5 .5 Size S ta te Sm all Medium L arge T o ta l 5 2 _ 4 11 5 5 .5 22.2 4 4 .4 4 0 .7 7901 E d u c a tio n Code R egion S o u th e rn C e n tra l N o rth e rn 3 0 0 3 3 .3 0.0 0.0 Type E lem en tary H igh S ch o o l U n ifie d 0 1 2 0.0 11.1 22.2 S iz e Sm all Medium L arge 1 1 1 11.1 11.1 11.1 State Total 11.1 TABLE 7 (continued) 370 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P er c e n t 7902 E d u c a tio n Code R egion S o u th e rn 4 4 4 .4 C e n tr a l 0 0 .0 N o rth e rn - 0 0 .0 - Type E lem en tary 0 0 .0 H igh S ch o o l 1 1 1 .1 U n ifie d 3 3 3 .3 S iz e Sm all 2 2 2 .2 Medium 1 1 1 .1 L arg e 1 1 1 .1 S t a t e T o ta l 4 1 4 .8 7903 E d u c a tio n Code R egion S o u th e rn 5 5 5 .5 C e n tr a l 1 1 1 .1 N o rth e rn 0 0 .0 Type E lem en tary 0 0 .0 H igh S ch o o l 2 2 2 .2 U n ifie d 4 4 4 .4 S iz e Sm all 2 2 2 .2 Medium 3 3 3 .3 L arge 1 11 .1 S t a t e T o ta l 6 2 2 .2 8001 E d u c a tio n Code R egion S o u th e rn 1 1 1.1 C e n tra l 1 1 1 .1 N o rth e rn 1 1 .1 Type E lem en tary 1 11 .1 H igh S chool 1 11 .1 U n ifie d 1 11 .1 S iz e Sm all 1 1 1 .1 Medium 1 1 1 .1 L arge 1 1 1 .1 S t a t e T o ta l 3 1 1 .1 TABLE 7 (continued) 371 PROBLEMS RESULTING- FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 80S3 E d u c a tio n Code R egion S o u th ern C e n tra l N o rth e rn 0 1 1 0.0 11.1 11.1 Type E lem en tary H igh School U n ifie d 1 1 0 11.1 11.1 0.0 S iz e S ta te Sm all Medium L arge T o ta l 0 0 2 0.0 0.0 22.2 7 .4 8056 E d u c a tio n Code R egion S o u th ern C e n tra l N o rth ern 1 2 1 11.1 22.2 11.1 Type E lem entary H igh School U n ifie d 2 1 1 22.2 11.1 11.1 S iz e S ta te Sm all Medium L arge T o ta l 0 2 2 0.0 22.2 22.2 1 4 .8 8105 E d u c a tio n Code R egion S o u th ern C e n tra l N o rth ern 1 0 4 Type E lem entary H igh School U n ifie d 0 2 3 S iz e Sm all Medium L arge 0 2 3 State Total 18.5 372 TABLE 7 (continued) PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 8159 E d u c a tio n Code R egion S o u th ern 2 2 2 .2 C e n tra l 2 2 2 .2 N o rth e rn 2 2 2 .2 Type E lem entary 1 1 1 .1 H igh School 0 0 .0 U n ifie d 5 5 5 .5 S iz e Sm all 0 0 .0 Medium 2 2 2 .2 L arge 4 4 4 .4 S ta te T o ta l 6 2 2 .2 8160 E d u c a tio n Code R egion S o u th ern 6 6 6 .6 C e n tra l 4 4 4 .4 N o rth e rn 1 1 1 .1 Type E lem en tary 1 1 1 .1 High School 4 4 4 .4 U n ifie d 6 6 6 .6 S iz e Sm all 2 2 2 .2 Medium 4 4 4 .4 L arge 5 5 5 .5 — S ta te T o ta l 11 4 0 .7 12822 E d u c a tio n Code R egion S o u th ern 4 4 4 .4 C e n tra l 5 5 5 .5 N o rth e rn 6 6 6 .6 Type E lem en tary 8 8 8 .8 H igh School 4 4 4 .4 U n ifie d 3 3 3 .3 S iz e Sm all 4 4 4 .4 Medium 4 4 4 .4 L arge _7 77 .7 S ta te T o ta l 15 55 .6 TABLE 7 (continued) 373 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5--EDUCATION S e c tio n Number Code C l a s s i f i c a t i o n Num b e r P e r c e n t 2 4 A d m in is tra tiv e R egion C ode, T i t l e 5 S o u th e rn C e n tra l N o rth e rn 1 0 0 11.1 0.0 0.0 Type E lem en tary H igh School U n ifie d 0 0 1 0.0 0.0 11.1 S iz e S ta t e Sm all Medium L arge T o ta l 1 0 0 11.1 0.0 0.0 3 .7 96 A d m in is tra tiv e R egion C ode, T i t l e 5 S o u th ern C e n tra l N o rth e rn 0 1 0 Type E lem en tary H igh School U n ifie d 0 0 1 97 A d m in is tra tiv e C ode, T i t l e 5 S iz e S ta t e R egion S m all Medium L arg e T o ta l S o u th e rn C e n tra l N o rth e rn 0 0 1 3 0 1 3 .7 3 3 .3 0.0 11.1 Type E lem en tary H igh School U n ifie d 0 2 2 0.0 22.2 22.2 S iz e S m all Medium L arge 2 1 1 22.2 11.1 11.1 State Total 14.8 TABLE 7 (continued) 374 PROBLEMS RESULTING FROM PROVISIONS OF EDUCATION CODE AND ADMINISTRATIVE CODE, TITLE 5— EDUCATION S e c tio n Num- P e r Number Code C l a s s i f i c a t i o n b e r c e n t 102 A d m in is tra tiv e R egion Code, T i t l e 5 Type S iz e S ta te 102.1 A d m in is tra tiv e R egion Code, T i t l e 5 Type S iz e S ta te 173 A d m in is tra tiv e R egion Code, T i t l e 5 Type S iz e State S o u th e rn 3 3 3 .3 C e n tra l 4 4 4 .4 N o rth e rn 2 2 2 .2 E lem en tary 0 0 .0 H igh S chool 4 4 4 .4 U n ifie d 5 5 5 .5 Sm all 4 4 4 .4 Medium 1 1 1 .1 L arge 4 4 4 .4 T o ta l 9 3 3 .3 S o u th e rn 1 1 1 .1 C e n tra l 2 2 2 .2 N o rth e rn 0 0 .0 E lem en tary 0 0 .0 H igh S chool 2 2 2 .2 U n ifie d 1 11 .1 Sm all 0 0 .0 Medium 1 1 1 .1 L arge 2 2 2 .2 T o ta l 3 11 .1 S o u th e rn 0 0 .0 C e n tra l 0 0 .0 N o rth e rn 1 1 1 .1 E lem en tary 1 1 1 .1 H igh S chool 0 0 .0 U n ifie d 0 0 .0 Sm all 0 0 .0 Medium 0 0 .0 L arge 1 1 1 .1 T o ta l 1 3 .7

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