xt7h445hf29f https://exploreuk.uky.edu/dipstest/xt7h445hf29f/data/mets.xml Kentucky. Department of Education. Kentucky Kentucky. Department of Education. 1934-08 volumes: illustrations 23-28 cm. call numbers 17-ED83 2 and L152 .B35. bulletins  English Frankford, Ky. : Dept. of Education  This digital resource may be freely searched and displayed in accordance with U. S. copyright laws. Educational Bulletin (Frankfort, Ky.) Education -- Kentucky Educational Bulletin (Frankfort, Ky.), vol. II, no. 6, August 1934 text Educational Bulletin (Frankfort, Ky.), vol. II, no. 6, August 1934 1934 1934-08 2021 true xt7h445hf29f section xt7h445hf29f   
   

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3“. Commonwealth of Kentucky 0

EDUCATIONAL BULLETIN

—
IN THIS NUMBER
CARRY ON!

JAMES H. RICHMOND

 

 

 

 

 

The School Attendance Officer as a Public Relations Agent

L. E. MEECE

The State Provides Free Textbooks for Children
in the Public Schools '

J. W. BROOKER

les and Regulations for Local Boards of Education
OTIS c. AMIS

 

Published by

l

PDEPARTMENT OF EDUCATION
JAMES H. RICHMOND
Superintendent of Public Instruction

[ University of Kentucky

1 Lexington, Kentucky

‘ T‘residen‘t

 

 

 

 

 

ISSUED MONTHLY

Entered as second-chase matter March 21, 1933, at the post office at
Frankfort, Kentucky, under the Act of August 24, 1912.

Vol. || 0 August, 1934 O No. 6

U LIBRARY
NIVERSITY OF KENTUCKY

 

 

 

 

 

 

 

 

 

 

  

 

 

 

 

CARRY ON!

The new school code is new law; the new State Board is now
functioning; a substantial increase in state school support has been
provided by the legislature; free textbooks for at least the first three
grades are being distributed; attendance officers have been selected;
and many other progressive school policies are being introduced for
the benefit of the children of the Commonwealth. Never before have
conditions been better for the advancement of education in Kentucky.
Our people are better informed about their school problems and are
more sensitive to school needs than at any other time in the history of
the state. They have become educationally—minded. This is a whole-
some condition. It behooves school leaders, therefore, to dedicate
themselves to their work; they may assume their duties with an added
consecration and a new hope.

The eyes of school leadership in every part of the United States
have been focused on Kentucky, our school program having attracted
the interest and enlisted the praise of the nation. Let us justify this
interest by making still further advances along the lines in the battle
for better schools for our children. Let us understand that smug
self—satisfaction over what has already been accomplished will undo
most of the work that has been done. We cannot mark time. Bear
in mind that there are still selfish interests and selfish people:
“Chislers,” who will mar the work already done if permitted to do
so. “Eternal vigilance is the price of liberty.”

JAMES H. RICHMOND,
Superintendent of Public Instruction.

 

 

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THE SCHOOL ATTENDANCE OFFICER
AS A PUBLIC RELATIONS AGENT

By L. E. MEECE,

Bureau of School Service, University of Kentucky

One of the most important of the recently enacted school laws of
Kentucky is the law relating to school attendance. This law makes
it mandatory for each school district to provide the services of a full-
time, qualified attendance officer.

Along with the superintendent of schools, principals, and super-
visors, the attendance officer is perhaps one of the most important
officials employed by the board of. education, The type of officer
needed for this important position is clearly indicated by the provie
sions of the act setting forth his general duties. These provisions are
as follows:

The general duties of the attendance officer shall be (a) to enforce
the compulsory attendance and census laws in the attendance district
in which he serves, (b) to acquaint the school with the home conditions
of the child and the home with the work and advantages of the school,
(c) to ascertain the causes of irregular attendance and truancy and to
seek the elimination of these causes, (d) to perform such other duties
as may be assigned to him by the State Board of Education or the dis-
trict board. .

.It is clear from the provisions of this act that our lawmakers
cons1dered the work of the attendance officer as being primarily that
01‘ a public relations agent. This attitude is consistent with modern
educational trends and with the views of recognized educational
authorities and social workers. The modern attendance officer is
essentially an educator, not a policeman. He is a contact man, an
ambassador of education, and an adjuster of difficulties rather than
an agent of force and compulsion. The aim is to get the child back in
school, if possible, through a changed attitude toward the school.

The attendance officer is “to acquaint the school with the home
conditions of the child” in order that the school may better adjust its
PTOgram to meet the needs of the child. Only when the school sees its
problems from the point of view of the child, is it in a position to help
the child to adjust himself to the ways of the school. School adminis-
trators generally agree that knowledge of home conditions is essential
to the best understanding of pupils. The important task is obtaining
the necessary information. The attendance officer will help solve this
problem.

The attendance oflicer is “to acquaint the home with the work
and advantages of the school.” He is an interpreter of the school
and its ideals and purposes to the parents. The task is one of educa-
tlon and persuasion, of stimulation of confidence, and of securing co-

 

 

 

 

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operation. If there are difficulties owing to misunderstanding be-
tween teachers and pupils, or between teachers and parents, the at-
tendance officer will help to eliminate these difficulties and to bring
about a heartier and more svn‘ipathetic cooperation between the school
and the home.

The attendance officer is to “ascertain the causes of irregular at-
tendance and truancy and seek to eliminate these causes.” Truancy
is here recognized as a symptom of educatioi'ial or social maladjust-
ment. The attendance officer is to visit the home, to discover the
basic causes of interference with school attendance, and to seek,
through the cooperation of the school and other social agencies, to
eliminate these causes. The aim is to get the child back in school by
means of a changed attitude rather than by force.

Abilities demanded for work of this nature are of the highest
order. Such work requires not only a person of superior intelligence
and personality, but also one with a broad social outlook and an under-
standing of human nature. Such, a person should thoroughly under-
stand the work of the school and the aims and objectives toward which
it is directed. He should be able to analyze the social environment of
the child and to understand the eti‘fects of environmental conditions in
the development of attitudes and ideals. He should be able to secure
the confidence of children, teachers, and parents in order to bring
about better conditions.

While the primary function of the attendance officer is educa«
tional and preventive rather than compulsory, the law Wisely invests
the attendance officer with ample authority to use sterner measures
when such become necessary and advisable. Since the education 0i
all pupils at public expense can be justified only on the basis of an
investment by the state to insure its own perpetuation and to promote
its own interests, the education of the child is a concern of the state;
and When other methods fail the state makes it the duty of the attend-
ance officer to use his police power to enforce attendance.

 

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The State Provides Free [Textbooks For
Children In The Public Schools

By J. w. BROOKER,

Director Division of School Buildings and Grounds,
State Department of Education

For more than a decade, the question concerning the distribution
of “free textbooks” .ias challenged the consideration of legislators
and of leaders in the field of public education. The General Assembly
of 1928 enacted a “Free Textbook” Law but did not make proper
provision for the expenditure of moneys for this purpose. The Gen—
eral Assembly of 1934, Extraordinary Session, amended the original
“Free Textbook” Act, appropriating $500,000 to be used in purchas-
ing textbooks for distribution to pupils of elementary grades.

When time for administering this Act was due, the State Board
of Education and the Superintendent of Public Instruction, were
enjoined from expending any money to purchase “free textbooks.”
At a subsequent date, Judge Thomas, of the Court of Appeals, dis—
solved the injunction, thereby leaving the State Board of Education
authority to purchase “free textbooks.” Immediately following?
this order, machinery was set up by the State Board of Education to
administer the “Free Textbook” Act.

The first orders for “free textbooks” were mailed to publishing
_companies on Monday, August 13. Since that date 1,188 purchase
orders have been placed with the various publishing companies for
basal texts for children in grades one, two, and three, in 119 counties
and 8.2 independent districts, Orders are yet to be. made for one (1)
county and 123 independent districts.

The State Board of Education has now placed purchase orders
for all books requisitioncd, excepting in districts where adjustments
must be made in the requisitions. Books will be ordered for these
districts as soon as adjusted requisitions are received. Invoices from
various publishing companies are being received daily. indicating that
the publishing houses are filling orders promptly. Receipted invoices
have been returned by several county superintendents where books
actually have been delivered.

Forms now being printed will be mailed to all school administra—
tors when delivered by the printer. A letter of instruction will be
trialled with same. In a comparatively short time textbooks will be
JSsued to every child in grades one, two. and three of Kentucky’s
Public schools. A

For the information of school executives and district boards of
fidIIcation, House Bill No. 12, Extraordinary Session, 1934, providing
101‘ the appropriation of $500,000 for the purchase of “free text-

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books”, is incorporated in this article. The tentative regulations
governing the distribution of “free textbooks” for the State of Ken-
tucky, based upon Chapter 48, Acts of 1928, Sections 4421c-1 to
442lc-13, inclusive, Kentucky Statutes, are also incorporated.

Appropriation for Free Textbooks

That the State Board of Education shall have full authority to
purchase textbooks as provided by Chapter 48, Acts of 1928, and shall
have full authority to adopt such rules and regulations for the pur-
chase and distribution of such books as in its judgment may be neces-
sary, provided such rules and regulations are not in conflict with law.
In the purchase and distribution of textbooks the State Board of
Education shall begin with the first grade and shall furnish textbooks
to the first grade before any are bought for the second grade. After
books have been furnished to the first grade, if additional funds are
available the State Board shall furnish books to the second grade, and
so on, until the fund is exhausted; provided if, in the judgment of the
State Board of Education sufficient funds are not available to furnish
all the textbooks to any grade, then that Board shall have authority
to determine for what subject or subjects in that particular grade
textbooks shall be provided. There is hereby appropriated, annually,
out the General Fund, the sum of $500,000 for the purchase and distri-
bution of textbooks as provided in this Act, and any unused balance
left from one year shall be carried to the following year and shall be
used for the purposes provided in this Act. This sum is irrevocably
set aside for purchase and distribution of textbooks as provided in
this Act. The State Board of Education is hereby given full author-
ity to administer the purchase and distribution of textbooks in the
Commonwealth of Kentucky and shall expend from the funds ap-
propriated by this Act a sufficient amount to bear the expense of Acts
providing for the purchase and distribution of textbooks in this Conl-
nionwealth, provided that no amount shall be expended out of thls
fund except on proper approval of the State Board of Education,
and by requisition of the Superintendent of Public Tnstruction drawn
upon the Auditor of Public Accounts.

As the time is drawing so near for many rural schools to open,
there is hereby declared an emergency to exist, and this bill shall be-
come effective immediately upon the passage of the two houses of the
General Assembly and the signature of the Governor.

Tentative Regulations Governing the Distribution

of Free Textbooks for the State of Kentucky.

1. Requisitions by Superintendents. The Superintendent Of
Public Instruction shall furnish requisition forms on which county
superintendents and superintendents of independent districts shall
requisition the books needed for the next ensuing school term in the

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districts of their respective jurisdiction. Beginning with 1935-36,
such requisition shall be filed with the Superintendent of Public
Instruction at least one hundred and twenty (120) days before the
beginning of school in the various districts. The requisition for books
shall be made out in duplicate on Form lf‘T-l. The original shall be
sent to the Superintendent of Public Instruction and the duplicate
kept on file as a permanent record by the superintendent making the
requisition. '

2. Purchase Orders. The Superintendent of Public Instruction
will, upon receipt and approval of a requisition for books from any
superintendent, issue a purchase order ( on Form FT-2) in triplicate
to such publishing companies as are under contract to sell the text-
books requisitioned. The original purchase order shall be sent to the
publisher, the duplicate kept on file by the Superintendent of Public
Instruction, and the triplicate shall be sent to the superintendent
making such requisition for his files.

3. Shipments, Invoices, and Payments. Upon receipt of the pur-
chase order from the state office the textbooks shall be shipped by the
publisher, by prepaid freight, express, or parcel post, to the district
superintendent, as directed by the Superintendent of Public Instruc~
tion. The publishers shall issue invoices in triplicate. Invoice N0. 1
shall be sent direct to the Superintendent of Public Instruction and
Invoices Nos. 2 and 3 shall be sent to the district superintendent re-
ceiving the textbooks. Upon receipt of the textbooks, the district super-
mtendent shall check the shipment against the invoice and O. K.
Invoice No. 2 to the Superintendent of Public Instruction as a re-
ceipt of the shipment. The State Board of Education may then order
payment.

. 4. Custodian and Bond. The superintendents making requisi-
tion for the textbooks are custodians of the books in their respective
Jurisdiction. Each custodian of free textbooks shall execute a bond
to the Commonwealth for the faithful performance of his or her duties
1‘1 such a capacity. The penal! sum of the bond shall be equal in
amount to the value of the free textbooks under the charge of the
Eustodian. The bond shall be executed in triplicate on a form (Form
3T3) prepared by the State Superintendent of Public Instruction
and shall be guaranteed by a surety company authorized to do busi-
ness in the Commonwealth or shall be signed by three personal sureties
Whose unencumbered assets shall at least be equal to the penal sum of
the bond. In case a corporate bond is executed, the premium of such
110ml shall be paid by the local board of education. The bond shall
’6 approved by the local board of education and by the State Board
OI Education. The three copies shall be sent to the State Board of
Education for its approval. One copy shall remain in the permanent
files of the State Board of Education, and two copies shall be returned
to the local board after the bond has been approved.

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5. Books Labeled. All textbooks shall be permanently labeled
as the property of the State of Kentucky with the approved label,
Form FT-4.

6. Delivery of Books to Principals and Teachers. The district
superintendents acting under the direction of their respective boards
of education shall deliver or cause to be delivered to the principal or
teacher in charge of any public school at the building where said
principal or teacher has charge, the necessary number of books re-
quired for each grade for the use of said school and take his receipt
therefor, on Form FT-5.

7. Issuance of Boo/rs to Pupils. Books shall be issued by princi-
pals or teachers in charge of the public schools of the state to
regularly enrolled pupils of said schools, The principal or teacher
will fill out requisition cards in duplicate for each pupil using Form
F‘T-6. The original of these cards must be signed by the parents or
guardians who have supervision or custody of the pupils enrolling.
When the requisitions are properly signed and returned to the princi-
pal or teacher, the books will be delivered as requested to the pupils
entitled to them. The principal or teacher will keep both the original

, and the duplicate requisition cards. The original requisition cards
shall be receipted and returned to the pupils when the books are re-
turned to the principal or teacher at the close of the school term.

8. Books May be Purchased. Custodians of free textbooks,
under the provisions of this Act, shall sell to any pupil, parent 01'
guardian of pupils attending the public schools of Kentucky text-
books to such pupil, parent or guardian making request to purchase
hooks. Such books shall be sold at the official retail contract price
provided, that custodians shall not sell textbooks to private or sectarian
schools or for the use of pupils attending private or sectarian
school. Funds accruing from the sale of books shall be covered into
the General Fund of the State Treasury.

Any custodian selling textbooks as herein provided shall issue a
receipt in triplicate on Form F T-7, showing number and kind 0f
books sold, the amount of money received, from Whom receive-d, the
pupil for whom the books are purchased, and the school district in
which the pupil is enrolled. The original copy shall be sent to the
Superintendent of Public Instruction, the duplicate kept on file by

the custodian, and the triplicate delivered to the purchaser of the
books.

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RULES AND REGULATIONS FOR
LOCAL BOARDS OF EDUCATION

By OTIS C. AMIS,

Graduate Student of University of Kentucky and Superintendent of Public
Schools of Mt. Vernon, Kentucky

Editor’s Note—To operate any private or public enterprise success-
fully requires careful planning. To manage and operate properly the
public school program of any district, it is imperative that the board of
education prepare and adopt a practical set of rules and regulations.
The General Assembly has recognized the complex problems and pro-
cedure involved in this. Kentucky Statutes provide, first, in Section
4503-1, that each board of education shall have the power, and it shall
be its duty, to fix and prescribe the duties to be performed by all per-
sons in public school service in the district; second, in Section 4399-3,
that the board of education of each school district shall adopt a set of
rules, regulations and by-laws governing its meetings and proceedings.

Drafting rules, regulations and by-laws for this purpose is admit-
tedly a difficult task. It has challenged the serious consideration of
leaders in the field of public education. Graduate students in colleges
of education of institutionsof higher learning have given much time
and thought to the solution of this problem.

Mr. Otis C. Amis, graduate student of the University of Kentucky
and Superintendent of Public Schools of Mt. Vernon, Kentucky, has
made a very creditable study of this problem. The bulk of a term paper
on “Rules and Regulations for Local Boards of Education.” prepared
by him is published in this issue. Mr. Amis’ article points out ways and
means of approaching this problem, at the same time offering a sug-
gested solution. His article follows:

Introduction

Article V, Section 28. of. the Kentucky School Code passed by the
General Assembly in regular session in 1984 and placed in the Ken-
tucky Statutes as Section 4399—331 provides that “within sixty days
after this act goes into effect each board of education which has not
already done so shall meet and adopt a body of rules, regulations and
by-laws for its meetings and proceedings; for the government, regula-
tlon, and management of the schools and school property; and for the
qualification and employment of teachers and management of pupils.
Such rules, regulations and by-laws may be changed, altered, or set
aside only upon the affirmative vote of three members of the board of
education. ”

The above requirement neceSsitates the understanding of the
proper organization and functioning of the board of education and

1In future citations the section number given will refer to the Kentucky Stat-
ute numbers given the various sections of the Kentucky School Code passed by
the General Assembly in regular session in 1934.

 

 

 

   

  

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also implies an understanding of the fundamental principles of school
administration on the part of those who forn'iulate the rules and
regulations or by—laws which are to govern the actions of the board.

it is the purpose of this article to attempt to guide the boards of
education of the Commonwealth of Kentucky in the formulation of
such rules and regulations or by—laws as will enable those boards to
render the most etneient and intelligent service.

In writing this article an attempt has been made to study the
rules and regulations of boards of education of various types of school
districts throughout the United States, as well as to analyze publica-
tions by state departments of education for the guidance of local
boards of education. An attempt was made to secure the rules, regu-
lations, 0r by-laws of one hundred and five local boards of: education
from various types of school districts, including no fewer than two
from each state, and ranging in population in case of cities from 2,000
up to and including the cities of Philadelphia and Detroit. included
in this number were twelve county systems in the southern states.
Each state department of education, excepting that 01" Kentucky, was
asked to submit such rules and regulations or by-laws as it may have
prepared for the guidance of local boards of education.

Of the one hundred and live, local units contacted, fifty-three
made reply. Twenty of these fifty-three, including two counties in
which cities Were a part of the county system, submitted their by—laws;
four superintendents reported that the rules and regulations of their
boards were written in their minutes; live reported that they were
working 011 rules and regulations at the present time; four submitted
copies of regulations relating to the. employment of teachers; and the
remaining fifteen said that they had no rules and regulations govern-
ing the actions of their boards.

Twenty-eight of the forty—seven states replied that they had no
manual of rules and regulations or by—laws for local boards of educa-
tion; nine states referred the writer to the state school laws; five states
did not reply; and five submitted publications dealing with some
phase of the work of local boards. No state had a publication that
could properly be termed a manual of rules and regulations or by-laws
for local boards of education. The publications received were as fOl-
lows: Massachusetts Public School A (lmainislralion, Educational Bul-
letin, 1926, Number 1, Whole Number 166; Handbook for Rural and
Village Boards of Education «ml Clerks in Ohio; Duties and Respon-
sibilities of Super'intcnclmg School Committees to Home, 1928; The
School Board and the Sump-intomlcnt, Bulletin Number 88, Depart—
ment of Public Instruction of Indiana, 1927; and A Manual on Bud—
gets and Accounts for Oregon School Officials, 1929.

Current literature that would help in the writing of this article
was rather meager since only a few articles could be found beal‘ihg
directly on this problem. However, a few articles were of spccml
help, particularly one by Robert E. Cralle in the American School
Board Journal for April, 1. 32. The title of this article, “Reason—

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ableness of School Board Rules and Procedures,” indicates its nature.
Cralle’s outline of What should be included conformed vcry generally
to what is being practiced, as indicated by the rules and regulations
submitted for study.

In preparing this article, information has been drawn from perti-
nent articles or books in the field of school administration and from
practices in school administration as indicated by the rules and
regulations studied.

The following sections of the study deal with the analyses of
rules and regulations submitted, with generally accepted principles
in school organization and administration, and a suggested outline
of rules and regulations for local boards of education in Kentucky.
A bibliography in the field of school administration, with special
emphasis on boards of education and their work, is included with a
View to assisting those board members who May be interested in pro-
fessional reading.

A Survey of the Literature Relating to Rules and Regula-
tions of Local Boards of Education

The evidence obtained from twenty sets of rules and regulations
of local boards of education and the views of those who have written
on the subject reveals considerable differences of opinion as to what
should be included and What should be omitted from a set of rules and
regulations for the government of local boards of education. Local
conditions naturally have something to do with the factors to be dealt
With in such a set of rules. However, an analysis of the material
studied in the writing of this article shows that the following points

are covered in most rules and regulations:

I. RULES GOVERNING THE ORGANIZATION OF THE BOARD OF
EDUCATION

Time and place of meeting

Name of board

Annual meeting

Number of meetings and attendance at meetings
Vacancies in membership of board—how filled
Order of business

General functions of. board

PHHPQW?’

II- REGULATIONS FOR CONDUCTING THE BUSINESS OF THE
SCHOOL

A. Form of budget

B Preparation of the budget

C Procedure in making purchases

D. Procedure in paying claims

E. System of and responsibility for financial accounting
F Bonding of treasurer and depository

G Tuition rate for non-local pupils

H Eligibility for tuition to other schools

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Ill. IREGULATIONS RESPECTING THE PROFESSIONAL PERSONNEL

VI.

VII.

FHHWPWWPQW?

Time of election of the superintendent and the teaching personnel
Qualifications for various positions
Percentage of local teachers employed
Physical fitness of teachers

Marital status of women teachers

The teacher’s contract

Provision for salary payment

Provision for salary schedule

Absence from duty

Professional advancement

Provision for visiting days, field trips, etc.

POLICIES RESPECTING PUPIL PERSONNEL

A. Age of entrance

B. Limitations on entrance, if any

C. Suspension and explusion

D. Provision for the care of handicapped children

E. Compulsory attendance

F. The census

REGULATIONS IN REGARD TO THE TRANSPORTATION 0F

PUPILS

A. Who shall be transported

B. Qualifications of driver

C. Types of vehicles

D. General schedules

E. Contracts for drivers

F. Waiting stations

G. Insurance

REGULATIONS RESP‘ECTING MANAGEMENT OF SCHOOL PARO‘P-

ERTY

A. Powers and duties of janitors

B. Use of school property by other organizations
1. Types of organizations which may use school property
2. Responsibility of organization using sch001 property

C. Maintenance of buildings and grounds

D. Acquisition of new property and disposition of old

MISCELLANEOUS RULES AND REGULATIONS

A.
13.

Employment of personnel other than professional
Redress of grievances '

C. General session and length of school term

D.

Legal holidays

The above outline conforms closely to the outline suggested by

Robert E. Cralle in the article previously referred to and also to the
general practices of those boards of education Whose rules were

studied in the writing of this article.

The next division of this article

lists a set of principles taken from the literature in the field of sch_001
administration which will give members of local boards of education
an idea of what is believed to be good practice in the management 0f
schools.

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12

   
  
 
   
   
 
  
   
 
 
 
 
 
   

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Principles in School Organization and Administration

It is the purpose of this division to set out certain principles of
school administration as they have been formulated by authorities in
that field and by boards of education in the better school systems in
the United States. Here these principles will merely be listed. For
further discussion of them the interested superintendent or board
member should consult the readings listed in the bibliography.

These principles may well be summarized in the few words of
Theisen who states “That the most efficient results can be obtained
by (1) giving the chief executive large powers, (2) holding him re-
sponsible for results, and (3) designating him as the one to initiate
new policies. ’ ’1

The duties of the board of education and of the various school
officials may be outlined as follows:

I. DUTIES OF THE BOARD OF EDUCATION
A. To adopt policies for the administration of the school system
B To elect a qualified school executive, commonly known as the
superintendent of schools.
C. To hold regular meetings and whenever necessary act in the
' capacity of a court of appeals
D To pasg on the recommendations of the superintendent in regard

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Rules and regulations
Qualifications of employees
Selection of employees
Financial program
Building program
Curriculum
Selection of textbooks
Libraries
. Transportation
10. Health and sanitation
E. To require when necessary certain reports from the superintend-
ent and from the treasurer

ll. DUTIES OF THE SECIRETARY OF THE BOARD OF EDUCATION

A. To keep an accurate account of all the policies and proceedings
of the board of education

”I. DUTIES OF THE TREASURER OF THE BOARD OF EDUCATION
A. To be responsible for all the moneys belonging to the school
system
B.