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AUTHOR History; Educational Trends DOCUMENT RESUME ED 239 348 EA 016 292 AUTHOR Peterson; Paul E.; And Others TITLE Organizing Schools in Pluralist America, 1870-1940. Final Report. INSTITUTION, National Opinion Research Center, Chicago, Ill. SPONS AGENCY National Inst. of Education (ED), Washington, DC. PUB DATE [833 GRANT NIE-G-78-0100 NOTE 402p. PUB TYPE Reports Research/Technical (143) EDRS PRICE MF01/PC17 Plus Postage. DESCRIPTORS Administrator AttitUdes; Curriculum Development; *Educational Change; *Educational Development; Educational'Discrimination; Educational Equity (Finance); *Educational'Finance; *Educational History; Educational Trends; Elementary Secondary Education; Equal Education;. Governance; Immigrants; *Politics of Education; Racial Discrimination; Resource Allocation; School Administration; Superintendents; Tables (Data); Teacher Recruitment; *Urban Education IDENTIFIERS Georgia (Atlanta); Illinois (Chicago) ABSTRACT This three-part study of the history of urban education considers the contemporary relationship between school and society, the politics of education, and urban educational reform in Atlanta, Georgia, and Chicago, Illinois. Part .I suggests that the contemporary educational system contributes, more to social mobility and social change than revisionist writings allow. Part II examines the politics of 19th and 20th century school-finance,in the United States; suggests that curricular reforms resulted from the response of middle class reformers to challenges from rival institutions; considers equity in the allocation of school resources and in teacher recruitment; and examines the extent. to which race politics and race relations in urban education were resolved very differently for Asian and African immigrants than for European immigrants. Part III considers the many educational reforms in Atlanta; the Chicago Otis Law; the contrasting policies of three Chicago superintendents who were all considered reformers; the Chicago financial crisis of the 1930's; and/the relationship between the early years,,of Amerida's urban educational system and the great growth and reform after World War II. Relevant tables and illustrations accompany the document. (PB) *********.******************9******************************************** * Reproductions supplied by EDRS are the best that can be made * x from the original doct.ment. * ********************************************************************* U.S. DEPARTMENT OF EDUCATION NATIONAL JNSTITUTE OF EDUCATION E OM Al IONAI RESOURCES UNU RIER IO 1hisden or,( Ti S iT < ieproduced as r cm, the Pe ISUI. 01 or ganit,ilion origittattng it MIINUII TI tnyt, h IN, been frldd to IllpTUNt. TINIJITIV Points of vu w or m,mon, tit to d in this do( meat m, not m crstidnly n pr(m othodIr\IIE pombon or v r ORGANIZING SCHOOLS IN PLURALIST AMERICA, 1870 - 1940 Paul E. Peterson Director and Principal Investigator .NORC, The University of Chicago I -vz,,T4 qq,ft; Ata.t. ,O U4, r41:,'Siti,7"tt ss1 , ITS,ONSI ORGANIZING SCHOOLS IN PLURALIST AMERICA, 1870 - 1940 Paul E. Peterson Director and Principal Investigator NORG, The University of, Chicago with James Christiansen, John EcheverriGent, Kathleen Gille,, Richard Ginsberg, Marcia Turner-Jones, Susan Sherman Karpluss, Carol Peterson, David Plank, and Margaret Weir- -. Final report of research undertaken by NORC, University of Chicago, Chicago, Illinois,, pursuant to U.. S. Department of Education, National institute of Education Grant No. q-78-0100. Any opinions, findings, conclusions or recommendations expressed are those of `the authors. and do not necessarily reflect the views of'the National Institute of Education. si TABLE OF CONTENTS ACKNOWLEDGMENTS vii , \.. PART I. The Shape of Public Schools Chapter,. INTRODUCTION: THE PLURALIST POLITICS OF PUBLIC SCHOOLS 1 I. THE EFFECTS OF FAMILIES AND SCHOOLS ON SOCIAL MOBILITY 33 PART II. Formihg Public Schools' II. POLITICAL SUPPORT FOR THE FREE SCHOOL 52 III. THE POLITICS OF CURRICULAR CHANGE 97 IV. THE POLITICS OF RESOURCE ALLOCATION 132 V. THE POLITICS OF RACE AND-EQUITY 170 PART III. Reforming Public Schools VI. URBAN REFORM WITHOUT CLASS CONFLICT 214 VII. CLASS CONFLICT AND COMPROMISE REFORM 251 VIII. REFORM AND THE PROFESSIONAL SUPERINTENDENT 281 IX. MACHINE POLITICS AND FISCAL CRISIS./ 317 e X. POLITICS, AND T8E EXPANSION OF THE URBAN SCHOOL 351 REFERENCES 369 iii LIST OF TABLES I-1. The Effect on Income of Family Background, Education and Childhood Cognitive Ability for White Males, Ages'25-64, of Non-Farm Backgrounds,. 1962 (Bowles-Gintis Study) (a) 38 1-2. Intercorrelations Among Income, Eddcation, Verbal Ability and Family Background for White Males, Age 25-64, NORC(1976) 43 1-3. Simple Relationship Between Family Background Characteristics and Income of All Males, in 1962, 1973, 1974, and 1977-78 49 II-1. ,Expansion of the Atlanta Public. School System,, 1878-1895 57 11-2. Expansion of the Chicago Public School System, 1870-1896 ' 58 II' -3. Expansion of the San Francisco Public School System, 1872-1911 59 III-t. Employment of Boys' High School Students, San Francisao, 1878-1890 112 IV-1. Average Classroom Size fox' the Largest Ethnic Groups, Chicago, 1897-1898 139 IV-2. Average Classroom Size for Ethnic Groups, Chicago, 1897-1898 . 1141 IV-3. Average ClassrovmiSize for 27 Ethnic Groups; by Precinct, Chicagp, 1897 -98..+ 142 IV-4. Percentage of Educators Residing in the Same Ward in Which They Worked, Chicago, 1867-1915 146 IV-5. Percentage of Educators Residing in the Same Ward- s in Which They Worked, San Francisco, 1874-85 '148 IV-6. Ethnicity of the City Population and of Public School Educators, San Francisco, 1870-1910 152 IV-7. Ethnicity of the City Population and of Public School Educators, Chicago, 1867-1915 153 IV-8. Salary Range for Teachers, by Ethnicity, Chicago, 1882-1894 155 iv IV-9. Salary Range for Principals and Assistant Principals by Ethnicity, Chicago,. 1867-18944 156 IV-10. Salary Range for Teachers ac! Principals by (Ethnicity, San Francisco, 1874-1911 ...157 111,11. Average Classroom Size by Ethnicity of Teacher, an Francisco, 1874-1911 159 `Classroom Si3e by Ethnicity of Teacher, San Francisco, 1874 1911 1(50 IV-13. Atlanta's' Primary School Enrollment by Race, 1878-1895 164 VI-1. The Population of Atlanta 219 VI-2. Economic Growth of Atlanta, 1880-1910 220 VI -3. Atlanta Public School Enrollments, 1878-1910 221 Atlanta School Expenditures, 1878-1910 225 VI -5. Social Composition of Atlanta School Board, 1872-1918 237 VII-1 Selected Comparison of Education Bills before - Illinois Legislature,,1917............ 264 VIII-1. %'.alaries of Principals, by Sex, Chicago; 1867-1893 285 VIII-2. Average Daily Attendance and Per Pupil Expenditures, Chicago Public Schools, 1890-1925 296 VIII-3. Average Daily Attendance as a Percentage of School Age Population, Chicago, 1890-1930 304 IX-1. Employed Persons by Industrial Sectors: Atlanta, Chicago, San Francisco, 1930 319 IX-2. School Expenditures per Pupil in Atlanta, Chicago and San Prancisco, 1930-1940 323 IX-3. Expenditures on Engineer-Custodian Wages as a Percentage of Expenditures on Teachers Salaries, Chicago, 1925-1947 339 IX-4. Catholic School Enrollment as a Perdentage. of'Total School Enrollment in; Chicago, 1930-1950....344 X-1. Percent Member Years on the Chicago School Board, by Ethnic GrOup, 1870-1928 . .360 So, 6 1 LIST OF ILLUSTRATIONS I-1. Path Analysifs of the Determinant of Income for White - Males (25-64), 1976 44 1-2. Path Analysis of the Determinants of Income for White Males in 1976, by age cohort 45 1-3. Path Analysis of the Determinants of Income for Black Males (25- 64),.1976 47 II-1. Per Pupil Expenditures and 'Pupils per Teacher, by Political Era, San Francisco, 1870-1911 1.82 11-2. General Fund Expenditures by Political Era 88 41. vi Acknowledgements This project spanned four years and a continent. Contributions were made by many more than can be recognized in this brief acknowledgement. While some of the contributions can be found elsewhere in footnotes acrd in the Apendix to Chapter IV, there is little doubt that we.h4z! overlooked many whose help has been invaluable, if not crucial. The report itself reflects the interests and preoccupations of its principal author.. From-the vast amount of material collected by this project,'only a portion could.be selected for inclusion in this final report, and he bears the greatept responsibility for determining which material was to be included and for heavily editing and rewriting extensively the included information and analyses and interpretation. He is, an author of each chapter. But even though the other au ors cannot be held responsible for the overall thrust and tone of the report, their contributions to specific chapters have been extremely important. In some cases the contribution is such that the individual is appropriately listed as the,principal author of the chapter. The distribution of responsibilities among the various Chapters is,as follows: Chapter I: Susan Sherman Karpluss Chapter II: Carol Peterson, Kathleen Gille and Margaret Weir Chapter III: Kathleen Gille and Carol Peterson Chapter IV: .James Christiansen, principal author, and Carol Peterson Mapter Margaret,Weir, principal author, and Marcia. Turner-Jones Chapter VI: David Plank, principal:author Chapter VII: Richard Ginsberg, principal author and Carol Peterson Chapter VIII: Carol Peterson, principal author Chapter IX: John Echeverri-Gent and Carol Peterson VV , 8 Thefin.al---f4ort owes a subptantial debt to Ira Katznelson,' who was. -co=firincipal investigator. of this study. 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