The disadvantages claimed are: First, that it costs the State more to manufacture the books than it would cost a private publishing house. This is true, because the State pays its employés a higher rate of wages and requires only eight hours of daily service; second, the lack of all competition in the authorship; third, the intrusting of the work of supervision to a board whose members are already burdened with duties and which is subject to frequent changes. For instance, five changes have taken place in the membership of the State board of education in the last three and a half years; only one member of the board inaugurating the work now remains. How prices are fixed. * * * The following rules, which were at first adopted by the board for determining the cost of a book at Sacramento, have been continued in use: 1. Divide the cost of preparing the plates of a given book, including composition, engraving and electrotyping, by estimated supply of that book for twelve years. 2. Divide the share of the cost of the plant chargeable to a given book by the estimated supply for twelve years. 3. Divide three-fifths of the cost of compilation by the estimated supply for four years. 4. Divide the cost of the press work, paper, and binding of a given edition by the number of that edition printed. 5. Take the sum of the preceding quotients and add one cent per copy for revision of text and one cent per copy for revision of plates. To illustrate the application of these rules, the items in the cost of the Third Reader, a book of 512 pages, are here given: $3, 502. 44, as reported by superintendent of printing. 10, 802. 44÷300, 000 (estimated supply for twelve years)............ $0.033 908. 00÷100, 000 (estimated supply for four years).. 9,614.60+20,000 (number of edition)............... .01 .48 .01 .01 .543 Assuming postage to be the cost of distribution, the retail price becomes 66 cents. It will be seen that the course pursued insures a full return to the treasury of the State of all money appropriated therefrom and expended, and provides for such revision from time to time as may be necessary. Comparison of present and former prices. The following statement of present and former prices is given without comment. The prices are in all cases retail prices: McGuffey's Readers, five-book series, cheapest in former use (1,088 pages) Fish's Arithmetic, two books, cheapest in former use (498 pages). $2.50 .80 1.05 1.25 1.25 .75 7.10 Provision for completing the series, and for revision. In fixing the prices of the books issued, as has been seen, the board has provided for a self-sustaining series, and for relieving the general fund from further drafts for compilation and revision. Of the $35,000 appropriated to the use of the board, there remained on hand July 1, 1890, $9,335.80. In addition to this sum, all that is needed to enable the board to complete successfully the work of further compilation and revision is the use, from the proceeds of sales, of the one cent per copy which has been added to the price of each book for that purpose. Process of distribution. The act of 1887, providing for the distribution of books through private dealers, has proved effective, and in most respects satisfactory. The only friction arising has been in consequence of the prohibition to sell books to be sold again. This prohibition was imposed to prevent books getting into the hands of dealers not bound to sell at the price fixed by the board. In my judgment the prohibition should be removed if at the same time the selling of books by any one above the retail price fixed by the board is made a misdemeanor and punishable as such upon conviction. Public satisfaction. For four years the scheme has had a fair and impartial trial. Every aid to its successful issue which this office could suggest or render has been given. Ten books in all have been published during this time, and three more yet remain to be issued, two of which are nearly completed. So far as my observation goes, the favor with which the series has been received has been very much the same as that accorded to the books of private publishers. Many of the teachers throughout the State look upon the series with very general favor, while others have been less pronounced in their commendation and some have expressed severe and adverse criticisms. In the expressions of preference and criticism there is not much uniformity, some teachers preferring one book of the series and some another. Nearly all agree that the readers are poorly graded, that they should be revised, and at least one if not two more books should be added to the series. My conversations with teachers and superintendents in various parts of the State lead me to the conclusion that with a few exceptions the books of the State series are giving as fair general satisfaction as the books previously in use. The mechanical work, at first bitterly complained of, is now generally conceded to be good. The character of this work may easily make a difference of 25 to 50 per cent. in the working life of such books. The State publication of text-books in California has undoubtedly been one factor in causing the publishers of school books generally to reduce their prices, and there is not now so great a difference between the prices of our State series and those of private publishers; it would even be possible for the State to purchase school books now at wholesale for less prices than it costs to manufacture them at the State office, as may be seen by the following lists of present prices at which books are now sold: These are retail prices, and were the State to purchase in large quantities a discount from these figures of 33 per cent. could probably be obtained. As such an arrangement would entail an amendment to the constitution, it is not likely to be done very soon. What the State printer says. The following is taken from a letter of Mr. J. D. Young, State printer, dated November 25, 1890: "As to the contents of the books I do not pretend to judge critically, but with the mechanical work I have something to do, and I know that in printing and binding, quality of cloth, leather, and board, our books are equal to any issued, while the paper is superior to most; for instance, we have been paying for that we used three-tenths of a cent more per pound than the price for which we could get the article used by the Appletons. We pay our compositors twenty-seven dollars per week; bookbinders and pressmen, twenty-four dollars per week; employ no apprentices, work but eight hours per day, and yet sell the school books at a great reduction from the price previously charged by those engaged in the publishing business, and make a profit on each book which is held to pay, at the expiration of the twelve years the series is to run, the cost of plant, compilation, and manufacture of plates. "The books seem to give good satisfaction as a whole. Some people say that a certain book is not equal in its compilation to others they have seen, and other people allege that the same book is excellent, but another one, pronounced superior by the first lot of critics, is not what it should be. It is probably the same with the books issued by private publishers." The foregoing would seem to be competent testimony as to the mechanical quality of the California State school books. Later views of the State Superintendent.-It will be seen by the following circular letter, dated December 26, 1890, that Superintendent Hoitt has finally reached the conclusion that State publication of text-books is unsuccessful: DEAR SIR: In reply to your late inquiry concerning the publication of school text-books by the State of California, I have had so many inquiries from your own and other States, that I have concluded to make a general statement in regard to the principal results of our experiment in State publication of text-books. For over four years this plan has had a fair and impartial trial in our State. I came into office a believer in the project, and every aid which I could give to its successful issue has been freely rendered throughout my administration. But now, in the light of my experience, I must acknowledge that the results have not met my expectations. In the first place, the expense has been great, over $400,000 having been appropriated thus far for the compilation of the series and the manufacture of the first 50,000 copies of each book. Ten books have so far been issued and three more are yet to come to complete a full series as required by our law. Whatever may be the advantages claimed for State publication by believers in a paternal plan of government, the result of the experiment in our State shows that it costs the State more to manufacture the books than it would cost a private publishing house, for obvious reasons. Besides this there is in a State series a lack of spontaneity and competition in authorship. When the State board employs an author or compiler it must accept and pay for his work whether it is suitable or not. And the supervision and compilation of the series of schoolbooks by a State Board whose membership is subject to frequent changes and who are already burdened with other duties, is attended with difficulties. While our State board has been zealous and done the best it could in making a State series, I regret that its efforts have not met the requirements of the schools or the expectations of our leading educators, as shown by the following resolution adopted at the Biennial Convention of California school superintendents, held December 2 and 3, 1890: Resolved, That while certain of the State text.books, notably the 'Primary Language Lessons' and the Elementary Geography,' have met the approval of the public school teachers of the State, we desire to record our severe criticism and disapproval of others of the State series, and express our judgment that their thorough revision by competent authors, so as to adapt them to the wants of the schools, is imperative, and should be entered upon at once." In the light of our experience, after four years of trial, I am therefore compelled, with personal reluctance, to acknowledge to the comparative want of success in our California experiment in making and publishing schoolbooks. Taking into consideration the large appropriations made, and the further constant outlays for revisions, new plates, etc., the same number of books can be purchased in the open market at wholesale prices for less than it costs the State to manufacture them. I am therefore constrained to admit that I would not advise any other State to enter upon the publication of school books. Very truly, yours, IRA G. HOITT, Superintendent of Public Instruction. COLORADO. District school boards are authorized and required to "fix the kind of text-books to be used; provided, that but one kind of text-book of the same grade or branch of study shall be used in the same department of a school, and that after the adoption of any book, it shall not be changed in less than four years, unless the price thereof shall be unwarrantably advanced, or the mechanical quality lowered, or the supply stopped."" Also to "furnish free text-books for the use of all pupils, when authorized to do so by a majority vote of the district, as expressed at any regular or special meeting."* 1Colo. Sch. Law, 1889, sec. 51, second. * Ibid., ninth. Comments of State Superintendent L. S. Cornell.-"The last legislature amended the school law so as to permit school districts to purchase and own the text-books for the use of all the children in the schools. Quite a number of districts in the State have already availed themselves of this provision, and are well pleased with the results. In my opinion free text-books owned by the district is the only solution of the text-book problem. The anxiety to have all the schools of the county or the State use the same books ceases when each district owns its own books." CONNECTICUT. The provisions of the Connecticut law relating to text-books are as follows: Authority of State board.-"The board [of education] may direct what books shall be used in all its schools, but shall not direct any book to be changed oftener than once in five years." 2 Physiology and hygiene.-"The State board of education shall prescribe the text-books to be used in teaching physiology and hygiene as required by law, and shall prepare or cause to be prepared a text-book, and if desirable, charts for such teaching, which textbooks and charts shall be furnished to towns and school districts for the use of scholars in the public schools needing the same free of expense." Changes of text-books.-"No [town] board of school visitors or school committee shall change any text-book used in its public schools except by a two-thirds vote of all the members of the board or committee, notice of such intended change having been previously given at a meeting of said board at least one week previous to such change."4 Free text-books permitted.-"Any town at its annual town meeting may direct its school visitors or board of education or town committee to purchase, at the expense of said town, the text-books and other school supplies used in the public schools of said town, and said text-books and supplies shall be loaned to the pupils of said public schools free of charge, subject to such rules and regulations as the school visitors or the board of education or town committee may prescribe." 5 The secretary of the State board, Hon. Charles D. Hine, replied to the inquiries of Superintendent Cooper as follows: "I. The only system ever tried in this State is that of committing the selection of text-books to town boards. This has never been abandoned. "II. The system above named is now in operation. The State board of education, however, has by law the power to regulate the selection of text-books. It never has exercised this power. The present system doubtless meets with public approval, because efforts to overthrow it have never met with substantial encouragement. "III. I can not tell you what system is hest, because I am not acquainted with many. "IV. In 1886 the State prescribed a text-book in physiology, and not only prescribed the book but authorized the publication by the State board of education. A small textbook was prepared by the board and has been widely circulated in the State. The board, however, has never insisted that this book was exclusive, and has never interfered with instruction in other books. "V. If your inquiries relate to the question whether text-books should be furnished by town or State, I am not prepared to give you a full opinion upon this subject. In our State free text-books would be of advantage in some places and of no advantage in others. My belief, however, is that the expense of text-books to the people would be very much decreased, as it ought to be, by the purchase of books by the local authorities and supplying them at cost to families. The objection, of course, is that it permits abuse; yet there is no good thing which can not be perverted to improper ends."6 DELAWARE.. The following statement regarding the Delaware system was prepared by President A. N. Raub, of the State Board of Education, for State Superintendent Cooper, of Texas:7 "I. The State purchased the books and furnished to local dealers as depositaries, to whom they allowed 10 per cent. for handling. Result, some dealers failed, some were dishonest, and many of the books became shelf-worn; and add to all this expenses of freight, etc., and the loss to the State became a very serious one. The plan was abandoned two years ago. "II. Pupils now purchase their books at the stores as they would purchase any other merchandise. This plan of course allows merchants to fix their own prices. Under the former plan the prices were fixed by contract with the publishers. Books are adopted every five years by the State Board of Education. III. In my opinion the best plan is to allow local districts, or at most counties, to select their own series of books, and have the State authorize the purchase of these books by the local school boards, just as they would purchase any other supplies, and furnish the use of them free to the pupil. When I began teaching in 1857 in the county of Lancaster, Pennsylvania, I found this plan pursued in the township in which I taught. It is still continued in the same township, and there has never been a particle of objection urged against it. Under this system the right of individual pupils to purchase and keep their own books has always been conceded, but even these prefer to purchase of the school board, because the advance on first cost is very slight. If each district purchases and holds its own books, giving free use of the same to its pupils, the question of either State or county uniformity is a matter of little consequence." DISTRICT OF COLUMBIA. The board of school trustees determines the text-books to be used in the public schools. Supt. W. B. Powell adduces the following considerations in favor of free text-books: "According to the rules of the board, text-books are now loaned to the children whose parents request the same. This request, however, is to be accompanied by a declaration that he who makes it is unable to furnish the text-books for his children. Many worthy persons, unfortunately situated, naturally dislike to make such statement or declaration. For this reason there is no doubt that many children are detained from school for weeks or months at a time, and that others are wholly deprived of the privileges of school. "It were folly to say that this need not be so. The condition exists; the children are not in school. They should be. Their education is demanded by the interests of the community. "Again, many children are withdrawn from school before they would be if their parents were able to furnish the books required by their advancement and promotion. A large number of children, therefore, get only a modicum of education. The interests of the State demand a broader learning and a more thorough disciplining than these children get. "Again, there is much waste to the community at large in the purchase of text-books by individuals, as many of these books are used but for a short time, and being of little or no value as library books, are destroyed or thrown aside. "To prevent this unnecessary outlay and, what is infinitely more important to the State, to insure a desirable minimum education of every child, I believe the State should furnish the text-books as well as the instruction. * * * "The American community is more interested to-day in having every child benefited by its schools than it is in having the character of its schools improved. Not how high shall we take our schools nor how broad shall we make our courses of instruction, but how may every child be reached and be made a safer and better member of the community, is the problem to be solved. Any movement or instrumentality that reaches down and uplifts will give value to the school system and compensation to the taxpayer. 172 GEORGIA. "The county board of education shall prescribe, from time to time, what text-books and books of reference shall be used in the common schools of the county: Provided, That the Bible shall not be excluded from the common or public schools of the State: And provided further, That when such text-books are prescribed, they shall not be changed for five years thereafter, except by a three-fourths vote of all the board: And provided further, That the county boards shall not be permitted to introduce into the schools any text or miscellaneous book of a sectarian or sectional character. No teacher shall receive pay for any pupil who is allowed to use any other than the prescribed text-books."13" Since the above was put in type, information has been received by the Bureau of the enactment of a law, to take effect the first Saturday of April, 1891, requiring the school boards of each school district to furnish text-books free to all pupils. The books are to be paid for out of the funds appropriated by the State. D. C. Sch. Rep., 1888-89, pp. 25-6. Congress, at its session of 1890-91, made an appropriation to supply the six lower grades of the public schools of the District of Columbia with free text-books. This action encountered considerable opposition. 3 Ga. Sch, Law, 1889. sec. 23. |