In an address at the dedication of an educational building at
Albany a few days ago, Governor Hughes said: “I want to refer
to the importance in this day of giving our teachers and of having
them communicate to their pupils the proper sense of the responsibility
of citizenship in this country. It is not enough to have
patriotic songs sung. It is a fine thing to have the flag flying
and to have it continuously before the youthful mind as a symbol
of this great independent nation, of the land of the free and the
home of the brave. But as a distinguished man once said, it is a
very doubtful advantage to generate emotion which has no practical
use, and the emotions of patriotism ought to be stimulated
with regard to certain important and practical ends. Study of
civics, the knowledge of the actual operation of our government
is most important.”
In this statement the governor puts the case admirably. Civics
should be taught in the schools, and it should be taught in a
practical way. When your committee made its investigations
some half dozen years ago into the matter of instruction in
municipal government in elementary and high schools, it discovered
two things: First, a lamentable lack of proper instruction in the
subject in the schools of the country, and second, an earnest
desire on the part of those in authority to remedy this lack.
Advice and assistance were asked for by many who replied to our
questionnaire. We were impressed with the importance of presenting
something definite and concrete in the way of recommendations.
It was easy enough of course to say that the subject
should be taught in both elementary and high schools, that it
should be so placed in the curriculum, as to reach all the pupils,
and that it should be, as Governor Hughes puts it, a study of the
actual operations of our government. But the schools wanted
something more directly helpful than this. Few, if any, text-books
suitable for the purpose were available. Practically all of
them were written along the conventional lines of a scientific
treatment of the framework of government with but slight and
ineffective attempts to make the study other than one of broad
generalizations of little direct and concrete meaning to the youthful
student. Happily there has been some endeavor since the
committee’s first report to make texts which really meet the need,
and there are now on the market a few books which are genuinely
helpful. There is every reason to believe that the production of
this class of books is greatly to increase. However the committee
believes that suitable texts can only help to solve the problem.
Governor Hughes is quite right in emphasizing “the importance
of giving our teachers and of having them communicate to their
pupils the proper sense of responsibility of citizenship in this
country.” That sense of responsibility will hardly be strong and
effective if it is to come from purely academic study of government.
It will be powerful and helpful if it comes from an earnest
and sympathetic study of government in operation, a study of
what the government is actually doing for the student, what it
ought to do and what he himself can do to improve it. A study
of this kind can hardly fail to give the future citizen a feeling
of pride in his own city, and a proper sense of his own responsibility
in making its government honest and efficient. The
municipal campaign recently concluded in New York seems to
have been conducted largely on the idea that the average voter
is more interested in personalities than policies. Such a campaign
would be impossible before an electorate having even an
elementary appreciation of the direct bearing upon its own personal
interests of an honest and efficient administration of the
city’s affairs. It is plainly the business of the schools to use their
extraordinary opportunity and extraordinary power to equip the
voters of to-morrow with a training in these vital affairs of government
that shall make them intelligent critics of what their
servants in office have done or what claimants for their ballots
propose to do. Heretofore the schools have been generally content
to give instruction on matters of state and national government,
with but scantiest reference to municipal affairs, in spite of the
fact that municipal government is of most direct and vital importance
to the citizen, touching him in his daily life at every turn.
If the schools could only establish firmly in the minds of the
students just the one fact that party labels are of no importance
in municipal matters, that honest and efficient administrators
should be chosen regardless of party connection or endorsement that
alone would be a tremendous gain. We have been going on the
assumption that a knowledge of state and federal government will
furnish enough insight into matters of administration to guide
the voter in matters of municipal government. It would be far
better if the choice were necessary to rely upon a proper knowledge
and appreciation of municipal interests to guide the voter
in the broader fields of government. The choice is of course not
necessary. State and national government should still be studied,
but in a more rational way. Much the same method may well be
employed as in the study of municipal government.
As has already been stated, your committee believes that instruction
in municipal government should reach every pupil in the
schools. That means that it should not be delayed in the elementary
school till the last year of the course, or in the high
school until the senior year, as is still generally the rule. A large
percentage of elementary school pupils drop out before they have
completed even the seventh year of the course, and a still larger
percentage of high school enrollment is lost long before the graduation
stage. The committee believes that there should be continuous
instruction in civics during the last four years of the
elementary course, moving along in easy and progressive fashion
from a very simple study of municipal housekeeping to a fairly
comprehensive notion of the city’s government activities. The
course as outlined in the New York City program of studies for
elementary schools has some admirable features. The course in
its present form is due in no small measure to the work of your
committee under the original chairmanship of Superintendent
Maxwell. It provides in the fifth year for some study of the
duties of citizens and public officials, and also of civic institutions.
The study begins very logically with the most obvious form of
municipal activity, the school itself, and goes on to other departments,
such as charities, tenement house, and parks, in each
instance emphasizing what good citizenship involves in the pupil’s
relation to the department. In other words, the study is not
merely descriptive, it is personal as well. In the sixth year the
outline calls for instruction concerning the chief administrative
office of the city. In the seventh year and the first half of the
eighth year there is no definite provision for municipal civics,
the time being devoted to national government. In the last half
of the eighth year there is a return to the city government with
“increasing emphasis upon the duties and responsibilities of a citizen,
or as a member of a family, as pupil, as employer or employed,
as voter or as office-holder.” The course would be greatly
improved by making a study of the city’s municipal activities
continuous throughout the four years. At present there is a
break in the work from the end of the sixth year to the beginning
of the last half of the eighth year. The difficulty is of course that
of a crowded curriculum, but the very great importance of the
study ought to win for it a definite place in the curriculum even
at the expense of some other study.
Just how well the elementary course in municipal civics is
administered in New York City or in other cities where it is
prescribed it is impossible for the committee to say. A recent
writer in the “Survey” seems rather skeptical of the results
obtained in New York. From her own showing, however, I think
the situation is not so bad as she seems to imagine it. We who
teach know the difficulty of getting pupils to do themselves justice
in examinations or tests. They really know more than their
answers indicate. Patient, skillful, sympathetic questioning will
often reveal intelligence where only ignorance seemed to exist.
It would be a matter for surprise, however, if our civics teaching
was at present all that it ought to be. It is a new thing in the
curriculum. Both its content and its proper presentation must be
worked out by experiment. It can only be well handled by
teachers with a keen love for the subject, a genuine appreciation
of its value and some taste for first hand investigation. Supervisory
officers must give it cordial support and helpful direction.
For the immediate future we must look to the high schools, I
think, to show the most marked development in the study of
municipal activities. The conditions of teaching are more favorable
and the teaching force better qualified to meet the problem.
History and economics are both more generally taught and certainly
much better taught than they were a decade ago, and it
will not be difficult, I think, to interest instructors in these subjects
in the new field of municipal government. Of prime importance
is the place of the new study in the curriculum. The
general custom hitherto has been to postpone all teaching of
civics in secondary schools until the fourth year, when American
history is taken up. This is a serious error, as it means no
instruction whatever in the subject for the vast majority of high
school students, a relatively small proportion of whom complete
the full course. It should not be postponed till even the second
year, but should be taken up at once by the student upon
entrance into the high school as a serious and important study.
Confessedly pupils of 14 or 15 are not well prepared to receive
instruction in civics, as it is generally taught as a scientific study
of state and national government, with a historical background.
The latter may well continue to be a part of a well-rounded high
school course, modified only by the inclusion of much more work
on the municipal side and greatly improved by more rational
methods of teaching. But your committee earnestly insists upon
place being made in the very first year of the high school course
for this new work. At present there is only one high school in
New York which is doing this, but it is interesting to note that
no less than three committees are now at work in that city upon
plans for a program of study in this subject. And, moreover, two
of these committees have been appointed by bodies of a public
character who are asking and securing the cooperation of progressive
teachers in the task of bringing about the desired change.
It is a very reasonable hope that in a comparatively short time all
the high schools in the Greater New York will be giving the civics
instruction so urgently needed to all the boys and girls who enter
their doors. Once New York or any other important educational
center shows the way, we may confidently expect the movement
to spread rapidly. Judging from the numerous communications
the chairman of your committee has received there is already
widespread interest in the subject.
The time is therefore ripe, apparently, for us to offer definite
recommendations in the make-up of a proper course of study in the
new subject, whose value as a part of the curriculum will depend
chiefly upon the manner in which it is presented. On the whole,
it is fortunate that a text-book is hardly possible except as a supplementary
aid, for there is grave danger that a study of municipal
activities based upon a text-book would take too much of an
academic character and interfere with or minimize the first-hand
observation and investigation on the part of both pupil and teacher,
which are of primary importance in realizing the aims of the work.
However, there are some books with which the teacher should
familiarize himself, among them such works as Baker’s “Municipal
Engineering and Sanitation,” Eaton’s “The Government of Municipalities,”
Fairlie’s “Municipal Administration,” Wilcox’s “The
American City,” Zueblin’s “American Municipal Progress” and
Shaw’s excellent books. These are useful in a broad, general way.
The teacher should make copious use of the city charter and
reports of the various city departments, such as health, tenement
house, parks, schools, etc. The pupil’s chief reliance will be on the
city charter apart from the teacher’s instruction and his own
observation and investigation.
The course might well be outlined in the following general way:
I. A brief consideration of the way in which government in
general arises, with a discussion of the rise of a village and its
development into the city. The pupil will be led to note the
extension of the coöperative idea from its simple manifestation
in the primitive community to the comprehensive undertakings of
a modern metropolis. The relation of the city to the State will
be made clear in this discussion, and a proper understanding of
what a city charter is be given.
II. Following immediately upon this brief introductory study,
which will take on added meaning as the course progresses, should
come a study of what may properly be considered the central element
of city life—the street. Here we can appeal directly to the
pupil’s own experience and observation in a marked degree, and
we are sure of his interest when the work is related so closely to
his daily life. It is probably worth while to give a pretty full
outline of the topics to be taken up in a study of the city street.
The one which follows has been in successful use for several years
in the High School of Commerce in New York, and naturally covers
some points of slight importance in other cities.
The Street the Central Element of City Life.
(a) How streets are made.
(b) To whom they belong.
(c) Who pays for their improvement?
(d) What they are used for and what they contain.
1. Roadways for traffic. 2. Sidewalks. 3. Gutters. 4. Sewers. 5.
Water pipes. 6. Telegraph, telephone and electric light wires. 7. Car
tracks. 8. Subways. 9. Gas pipes. 10. Conduits.
A. Which of these belong to the city government?
B. Who controls each of these? (Exact officials as found in city
charter.)
C. How these public utilities came to be in the streets.
D. Franchises; what are they?
The Street.
(a) The proper arrangement of streets.
(b) The defects of the local system as compared with that of
other cities.
(c) Why our street system was laid out as it is.
(d) The surface of the street.
1. Paving.
a. The various kinds, comparative advantages and costs.
b. The importance of good paving to the business interests,
as shown in transportation charges.
c. Why the surface of the streets is not better, and who
suffers from it.
(1) Poor paving at the beginning, and the reason for it.
(2) Constant tearing up of the streets and failure to
replace properly.
(3) Remedy for these evils.
A. The conduit or subway.
1. Why we do not have it.
2. Additional evils resulting from its absence.
a. Waste of gas.
b. Waste of water.
c. Difficulty of making repairs.
d. Injury to health and vegetation.
Poisonous gases.
Uncleanliness.
2. The cleaning of the streets.
a. Who has charge of it.
b. What it costs.
c. Why necessary.
d. How the department is run.
e. What is done with the refuse and what should be done.
f. Duties of the householder.
g. How we may keep the streets cleaner.
h. The sprinkling of the streets.
1. By whom done.
3. The regulation of traffic.
a. Who makes the regulations (ordinances, rules)?
b. Who enforces them, such as the direction and speed of
traffic?
c. The encumbering of sidewalks and streets.
d. The restriction of certain streets.
e. Remedies for the congestion of traffic, as tunnels, belt
lines, etc., for freight.
f. The growth of business limited by traffic.
4. Sidewalks.
a. Regulations as to laying, repairing.
b. Who has jurisdiction over them.
c. The stoop line.
d. Right of the citizen to demand good sidewalks.
e. Blocking the sidewalk.
5. Gutters.
a. Whose business to keep clear of ice, snow or dirt.
b. Whose business to enforce the law and who makes the
law?
6. The sewer system.
a. How and by whom sewers are put in.
b. Who pays for them.
c. Who has charge of them.
d. How connected with the houses.
e. How the sewage is disposed of.
f. What is done in other cities and what should be done
here?
g. The importance of a good sewer system to the health of
the community.
7. The water supply.
a. Why the city and not the individual furnishes the supply
of water in a great city.
b. Why the water supply conditions the growth of the city.
c. Where we obtain our present water supply and how it
reaches us.
d. Who has charge of the water supply.
e. The total and per capita supply of water in the city.
f. How water is paid for.
g. The danger of a water famine.
1. How it can be averted.
(a) Saving the water by the repairing of leaks, using
meters, etc., salt water for fires and cleaning
streets.
(b) New sources of supply. The difficulties.
h. The advantages of city ownership over private company.
i. Cost of water supply.
8. Lighting the streets.
a. How it is done.
b. What it costs.
c. Who has charge of it.
d. Should it be done by the city or a private company?
e. The use of the streets for carrying pipes and wires.
f. Who controls this use?
g. The control over these companies by the city or state.
h. Ought the city furnish light to citizens for their private
purposes?
i. How the furnishing of light and fuel differs from furnishing
meat and groceries.
j. Who gives the right to place telegraph and telephone
wires?
k. Why should they be underground?
(a) Appearance, (b) Light, (c) Fire.
9. Transportation by cars on the streets.
a. The giving of franchises, why?
b. What is paid for a franchise?
c. Who has jurisdiction over street railways and to what
extent?
d. Should the city own them?
e. Importance of street passenger transportation in the life
of the city.
f. What cheaper fares could do for the city.
10. The rights of citizens on the streets.
a. Laws and ordinances which secure these, as those against
disorderly conduct, crowding, ball playing, excessive
speeding and those regulating processions, banners, etc.
11. Licenses to use streets.
a. What businesses require to be licensed and why?
b. How licenses are secured.
III. Part III of the course takes up the matter of protection
to life and property by the various departments of the city government,
as follows:
Protection to life and property by
1. The Police Department.
2. The Department of Education.
3. Fire Department.
4. The Courts and Department of Correction.
5. The Health Department.
6. The Tenement House Department.
7. The Bureau of Buildings.
8. The Park Department.
9. The Charities Department.
1. Police.
Policing the Streets.—The organization and management of
the police department. The duties of policemen. The importance
of an honest and efficient police department. Why
this department is so often criticized. The evils of graft
and why it exists. State or county control of police.
Should the head arise from the ranks? Should his position
be permanent? The rights of citizens as against the police.
How to make complaints. Serving warrants. The police
control over street traffic, street crowds, push carts, etc.
2. Education.
The educational law and why it exists. Why the city furnishes
free education. The organization of the department
of education. The method of appointment of officials and
the teaching force. The advantages of the system of appointments.
Kinds of day schools. The total cost of education
in the city. The cost per pupil in each class of
schools. The cost in the high school. The cost of books and
supplies. Is it worth while? Special schools and colleges:
Evening schools, corporate schools. The lecture system.
The vacation playground. Aims and advantages of each.
Why they exist. What they accomplish. The excellences
and defects of our system of education as compared with
that of other cities and countries. Supplementary education.
1. The Natural History Museum.
2. The Botanical Gardens.
3. The Zoological Garden.
4. The Art Museum.
3. The Fire Department.
Protection against fire depends upon (1) the building laws,
(2) the water supply, and (3) the efficiency of the fire department.
How one becomes a fireman. The organization
of the department.
(a) The influence of the insurance companies.
(b) The poor construction of buildings.
(c) The esprit de corps. Salaries and pensions.
4. The Courts and the Department of Correction.
1. Civil Courts.
A. Municipal Courts. Their jurisdiction, officers and district.
B. The City Court (county).
C. The Supreme Court.
2. Criminal Courts.
Under the study of courts comes the work of the court
officers and the processes connected with the trial. The
term of the office, selection and salary of the various officials.
The meaning of the various terms used. Probation
system.
The Department of Correction.—Its management and
duties. Prison labor. The indeterminate sentence system.
5. The Health Department.
(a) In relation to the ordinary resident. (b) In relation
to the landlord. (c) In relation to the business man.
A study of the actual regulations of this department as found in
the code, and a description of its activities, together with comparison
with the work done in other cities.
6. The Tenement House Department.
When and why formed? Who is subject to it? How organized?
What it has accomplished. Why it needs a strong
head. Illustrations from report of the Tenement House
Department. Dictation of most important provisions of law.
7. Building Bureau.
How it differs in organization from other departments. The
buildings subject to its jurisdiction. Why its inefficient management
is so disastrous. The temptation to graft and what
it costs.
8. The Park Department.
How it protects health. How our park system arose and
what it has cost. How the parks are managed. The need of
small parks. What parks have accomplished in New York.
Boulevards as parks. The need and benefit of playgrounds
as conducive to health, educative and preventive of crime.
The desirability of school playgrounds. Dangers threatening
parks.
9. Department of Charities.
The hospital and ambulance service. Out-door relief. Asylums.
How the destitute may be aided. The city’s aid to
private charitable institutions.
In this connection it is both desirable and feasible for the pupils
to visit the more important departments and get some first-hand
impressions of their work. Our experience has been that the city
officials willingly and helpfully coöperate with the school. Not
only have they furnished us much valuable material, but they have
also facilitated the inspection of their departments, and have not
infrequently themselves given helpful talks to the boys.
IV. Following close upon the study of the departments comes
a consideration of the cost to the city. The pupil has noted the
extensive activities of the municipality and the important question
of how they are all paid for looms up before him. The budget
must be studied, and the manner of levying and collecting taxes
must be understood, as well as the raising of money by loans.
Under proper guidance he will come to realize how extravagant
and inefficient government affects him personally, how honest and
economic government has a money value to every citizen. He will
want to know what city officers determine the amount of money
to be spent, and just what officers spend the money. New York
City has had a Board of Estimate and Apportionment in control
of its finances for a decade, yet it remained for the recent three-cornered
fight for the mayoralty, with its resulting choice of a
Democratic mayor and a Fusion Board of Estimate, to bring home
to the average citizen what the professional politician had long
understood, that this Board have really much more to do with the
government of the city than the mayor, that in reality New York
has a sort of government by commission.
V. We come finally in our study to a consideration of the citizen’s
part in the administration of municipal affairs. Topics such
as the following should be taken up:
Becoming a citizen. Becoming a voter. Registration. Voting.
Voting but a part. The party organization. The cause of good
or bad government. How the citizen may govern the city through
the party organization. Enrollment. The district captain. The
district committee. The district leader. The general committee.
The leader of the organization. How the leader reaches his place.
Organization the key to success in politics. Candidates for office,
how selected, formally, actually. Why the high school graduate
should work through an organization for an honest, business-like
government.
The preceding part of the course will have failed of its purpose
if it hasn’t established in the pupil’s mind certain elementary ideas
and ideals concerning the purpose of government and a sense of the
duty and responsibility which every citizen owes to the community
in which he works and lives. He will be an intelligent reader
of the numerous items in the daily press bearing upon the administration
of city affairs, and he will know how as a voter he may
take an active and effective part in that administration alike for
his own best interests and that of the community.
The course outlined is not an artificial affair based upon pure
theory. It has been successfully carried on in one high school for
half a decade, winning the enthusiastic interest of first-year pupils
as well as of the teachers charged with its conduct. It can be
adapted to the high school of any community, and will fail of its
purpose only if it is managed in a perfunctory fashion by instructors
who have not a professional interest in their work, or a high
sense of their great responsibility and their great opportunity.
It would be a splendid thing if we could require of all teachers
in the public schools a knowledge of the governmental activities
of the municipality they are called upon to serve, for surely they
of all citizens, ought to be familiar with the purpose and practice
of government.