TEACHERS’ SALARIES

New Zealand Mail, Issue 1536, 7 August 1901, Page 24

TEACHERS’ SALARIES

REPORT OF THE COMMISSION.

RECOMMENDATIONS FOR COLONIAL SCALES.

The report of the Commission appointed to consider the question of teachers’ salaries was laid before Parliament on Thursday. The Commissioners state that the necessity for the adoption of a colonial ecale arises from conditions connected with the administration of primary education in the colony. Th© boards have frequently found it necessary, for finan. cial anct other reasons, to change their regulations; and it is hard to say how many different scales have been in operation since the boards were constituted. The evidence taken shows that, as a general result of these changes, the salaries of teachers throughout the colony are steadily falling, while statistics prove that in other parts of th© British Empire the change is in the opposite direction. W® are convinced, say the Commissioners, that discontent exists among the great majority of teachers, but whether the adoption of a colonial scale of staff and salaries will completely remove this feeling remains to be seen. Among the reasons urged in favour of a colonial scale are the following : —(1) The great inequalities existing in the payment ©f salaries in schools of the same class; (2) the disproportionate allotment of salaries in individual districts; (3) the frequent reductions in salaries; (4) the increasing cost of maintenance of small schools. THE EXPENSES OF BOARDS.

Befor© referring in detail to the scales of salaries which they have formulated, the Commissioners point > out a somewhat uncertain factor which had to be taken into consideration —namely, the sum to be set aside to meet the cost of administration by boards, allowances to school committees, inspection, “ sickpay,” supply service, and minor charges. The average expenditure incurred in boards’ expenses for the last three years was £62,150 per annum. Th© Commissioners find that seyeral hoards have—more especially in former years—devoted a portion of the capitation grant to' the erection and repairs of school buildings. This necessarily reduced the . amount available for salaries. The majority of boards now, however, consider that this allowance should not he expended on school buildings- .W e hold that such transfers from the general account to the building fund are unjustifiable, and should be discontinued. In making provision for the fund for purposes other than the payment of teachers* salaries, the Commissioners have adopted the suggestion of the In-spector-General of Schools. By this sug_ gestion £250 is allowed to each board, with a capitation of 11s 3d on the total average attendance of the schools of the district. The sum required will he £66,108. By the fixed payment the financial position of the smaller districts will be strengthened, while the total increase will prove beneficial in all cases. According to an estimate prepared by th© Secretary for Education the income available, based on the returns of the year 1900, is £450,990, composed of: (1) A capitation of £4 on 111,747.5 pupils, equalling £446,990: (2) inspection subsidy to be merged with (1) £4000: a total of £450,990. If from this, sum is deducted £66,108 allowances to boards—-there is left on which to base the necessary calculations for the construction of a scale of staffs and salaries the amount of £384,882. THE PROPOSED SCALES OF SALARIES.

Two schemes have been prepared, which are marked Scale No. 1 and Scale No. 2 respectively. They present the same general features, th© difference between them being that in th© second there is an increase in the amount proposed as salaries to teachers in schools with an average attendance of more than twenty. Th© Commissioners strongly recommend the adoption of Scale No. 2. As, however, the order of reference necessitates the construction of a scale on a, oapitation of £4, they were compelled to so reduce salaries as to bring the total expenditure within the amount available. This, as has been stated, is £384,882, while the cost for salaries is, under Scale No. 1, £384,764, and under Seal© No. 2, £395,616, leaving an unallotted balance of £llß in the former and a debit balance of £13,425 in th© latter. The Commissioners urge that the amount to be voted for the payment of teachers’ salaries and boards’ allowances be raised t»o a sum equal to a capitation of £4 2s 6d There would then be sufficient funds to provide for the requirements of Scale No. 2, and to increase the alowanceg. of boards to a oaptitation of 12s, with th© addition of £250 to each district with an average attendance not eTTceedine 8000 —a provision estimated to °be sufficient. Th© adoption of this course would, in their opinion, satisfy the requirements of boards and teachers, and from an educational point of view, result in increased efficiency in* the primary schools. . . a . According to the Commissioners, Scale No. 1 gives a suggested staffingof schools of an attendance from 1 to 1050. The latter limit has been found necessary in order to provide for schools alreadyes.tahlished in th© larger centres. They

ing from 600 to 650, and it is suggested that in future that limit should he adopted. This recommendation is made to obviate the duplication of classes and the establishment of separate departments. It is their opinion that the mixed school, moderate in size, represents th© highest type of the primary school. Both scales provide for a grant of £5 up to an average attendance of twenty. Under this proposal tlie boards will be enabled to make complete provision for education in isolated and sparsely-popu-lated districts.

In schools of the second grade, with an average attendance varying from twenty to thirty, the salaries axe the same for teachers of both sexes- The question of ‘‘equal pay "for equal work” to men and women formed a prominent feature in th 0 evidence taken by the Commission, and on this subject widely different views were expressed. It was agreed, however, that women in many instances do not receive payment commensurate with the work they perform. Members of the Commission, though divided on the question of granting equal pay to men and women, unite in thinking that under existing circumstances the principle cannot be fully applied. It has, however, been adopted as far as relates to all schools with an average attendance not exceeding 30, and above this number the salaries of women teachers have been raised to approximate more closely to those paid to male teachers in similar positions. In this grade (20 to 30) ther tare 323 schools, and thp capitation allowance will, on each unit of increase over 20, be at the rate of £3 10s, under scale No. 1, and £4 under scale No. 2. The salaries will therefore range from £lO3 10s to £125, and from £lO4 to £l4O under the two scales respectively. These schools will absorb in salaries approximately £38,114 according to scale No. 1, and according to scale No. 2 £39,719. In the third grad© of schools, consisting of those with an average attendance of aver 30 and not over 40, a differential scale begins. The increase for each unit is at the rate of £2 for men and £1 for women. By this proposal th© salary for a master ranges from £135 to £155 under scale No. 1, and from £l4O to £l6O under scale No. 2, while the salary for mistresses varies from £135 to £145 under the former scale, and from £l4O to £l5O under the latter. Iln th© three grades of schools now considered provision is made for nearly five-eights of the primary schools —namely, 1039 out of a total of 1674-Hand we have so far dealt with schools in charged of a sole teacher. The aim of the Commission has been to provide salaries likely to attract teachers of increased capacity and training, and, although the salaries paid to men and wo) men respectively differ slightly, both sexes are placed nractically on the same competitive terms.

In the grade 40 to 50 under scale No. 1, the salary of the head-teacher varies for men from £155 to £165, and for women from £145 to £l5O. In scale No. 2 £5 is added to the salary of each teacher. A new feature is now presented by the introduction into the staff of an assistant teacher. Several boards have not recognised the necessity for the grant of assistance until the average attendance has reached 45, and even 50, and when help ha s been supplied it has usually taken the form of a pupil-teacher. The Commissioners regard it as indispensable that the first addition to the staff should be a duly qualified assistant. Therefore, so soon as the average attendance e xceeds 40, an assistant mistress is to be appointed, at a salary commencing at £BO per annum. At this point, however, the Commissioners undoubtedly prefer the allotment of a minimum salary of £BS, as provided in scale No. 2. In both scales the salaries of all assistants are fixed at each .grade, and do not vary, as in the case of head)teachers, with each unit of increase or decrease in the average attendance. For example, the assistant in a school in the grade 50 to 70 will receive £BS pep, annum, while in the succeeding grad© her salary will be £IOO. The schools between 50 and 90 number 232, and the cost of staffing each school varies from £250 to £315. This, the Commissioners are aware, is somewhat costly, but they deem it important that provision should be made for securing, the highest degree of efficiency in the country schools.

Of the 1674 primary schools, 1411 have an average attendance not exceeding 90. Of these the total average attendance is 34,143, and the total salaries approximately £167,671 under scale No. 1, and £172,276 under scale No. 2. The average attendance of the remaining 263 schools varies from 91 to 1020, and in only one school reaches 1000. Th© staff is increased at 90 by the addition of a pupil-teacher, and at 120 by a second nupil-teacher. Between 150 and 330 the increase is made by appoint) ing an assistant alternately with a pupilteacher, the advance required being 70 for am assistant, and 30 for a pup il-teacher. Above 330, while the same alternation is preserved, the addition required to secure an assistant is raised to 60. The supply of male teachers to fill the posi tions available on the staffs of the primary schools is at present inadequate. In the proposed scales, great latitude has been allowed to Boards in the choice of teachers of either sex, and in other special arrangements of the school staff. The maximum salary set down in seal© No. 1 for the largest class of schools is £374, and in scale No. 2, £3BO, exclusive of house allowance. These salaries, it

couraging the establishment of large schools, the Commissioners have not fixed a higher rate in such positions. The number of schools of more than 700 pupils is six, while in only two cases will the headmasters be entitled to the maximum salaries.

The Commissioners add that, while either of the scales submitted will benefit the large majority of teachers and schools in the colony, more particularly in the smaller districts, it has been found impossible, especially under scale No. 1, to avoid reducing a few salaries. Several baords have, at certain, points in the scales now in force, adopted payments higher than those al) lotted in other districts, and higher than can possibly be given according to a general scheme. Where, however, a salary paid according to .th© scale in force on 30th June, 1901, is more than that of the colonial scale, the Commissioners recommend that the reduction shall not take effect until the close of a period of two years, unless in th© meantime there is a change of teacher. It is necessary to provide that before any alteration in staff, by increase or decrease, can take place the average attendance calling for sucb alteration must have been maintained for at least two consecutive quarters. The Commissioners consider, however, that power should be retained, in any case of decrease under exceptional circumstances, and on the recommendation of an education board, to defer the action of such regulation for a third quarter. HOUSE ALLOWANCE. The scales deal solely with staffs and salaries, and take no account of the rental value of school residences occupied by many head-teachers. The Commissioners recommend that where no residence is provided house allowance be paid from the building fund on the following scale: Over 20 and not over 50 in average attendance, £2O; over 50 and not over 150, £3O; over 150 and not over 250, £35; over 250 and not ever 420, £4O; over 420, £SO. It is necessary to explain that the salaries of head-teacliers are suggested as adequate only if a residence is granted or rent allowed. The estimated annual cost of special provision for hous e allowance in connection with the 351 schools without residences is approximately £BOOO. TEACHERS’ CERTIFICATES. While not prepared to adopt a general system of deductions for deficiencies in certificates, the Commissioners recommend that the salaries of uncertificated head-teachers and assistants be reduced 10 per cent., provided that such salaries do not in consequence fall beloAV £BO per annum. The evidence, they add, indicates that many teachers and other educationists are opposed to the schemes of certificates at present in vogue. The Commissioners think that it is unduly complicated, and should be simplified by a reduction in the number of classes and divisions. The issue of two grades of certificates of competency to manage and teach a primary school is all that the public interests demand. Length of service and the reports of inspectors furnish sufficient additional data upon which boards may base their estimation of the capabilities of teachers. The holders of literary qualifications higher than those recorded in the suggested certificates may obtain official recognition of the same by passing university examinations. It is therefore unnecessary that the department should issue to a graduate of the universitv a diploma higher than the present Cectificate. There are a few schools that do not conform t 0 the type of mixed school dealt with by the Commissioners in the main scales. In certain districts there are separate schools for infants, girls, 01boys. A scale of staffs and salaries for these when they exceed 200 in average attendance also accompanies the report. The number of schools coming under this scale is only six, and the Commissioners are unanimous in the opinion that those should, without delay, b© brought into line with the other schools of the colony. THE TEACHING STAFF.

At the present time the teachers in the schools of the colony may be classed as—Head or sole teachers, infant mistresses, heads of departments, assistants, ex-pupil teachers, pupil t e &chers, sewing mistress 3s. Under the proposed schemes only thre e classes are recognised—namely, head or sole teachers, assistants and pupil teachers. In several education districts it is usual to appoint sewing mistresses to small schools in charge of male teachers. The salary paid to the sewing mistresses is in many cases nominal, as the time occupied in this service does not amount to more than two or three hours a week. The Commissioners have carefully considered the probable effect of the abolition of this position, and ar e satisfied that the result will be beneficial, as the increase in salaries will attract in_ to the smaller schools teachers capable of providing for instruction in sewing and at the same tim© supplying a higher standard of general training. THE PUPIL TEACHER SYSTEM.

The Commissioners are in accord with a number of witnesses who consider that the least satisfactory part of primary education in New Zealand is the pupil teacher system. This objection does not go so far as a recommendation of its abolition at the present time, and they confine themselves. to suggestions for important modifications. A great want of uniformity is disclosed in the selection, appointment, instruction and

a pass for the Sixth Standard to th* matriculation examination, and the ag® of admission displays corresponding variations. It is found in all districts, however, that there is considerable reluctance on the part of boys to enter the profession, and th e chief reason assigned for this is the long and arduous apprenticeship at a low remuneration. The scales submitted show a reduction in the number of pupil teachers from 962 to 681. This reduction can be effected, gradually as opportunity ocours, so that pupil teachers already in the service may not be prejudicially affected. The payment proposed is equal to the highest! now allowed by any Board, and the duty of giving instruction to pupil teachers has been allotted to the head teacher and assistants without special remuneras tion. Th e Commissioners think, further, that the qualifications required for entrance should be greater than a mere pass in the highest standard of the primary course; that the age of candidate® should be raised; that, if possible, the period of apprenticeship should b e shortened ; and that a uniform system of examination should be instituted. If the age and qualifications required at entrance are not raised, the question arises whether in this colony, as under th© London, Glasgow, Birmingham and other School Boards of Great Britain, pupil teachers should b e required to engage in the instruction of pupils for only half of each day, devoting the remainder to studyTRAINING SCHOOLS. With regard to the training of teachers during the period immediately following the pupil teacher course, the Commissioners are of opinion that what ar® required are technical schools for teach, ers. These should be established in each of the chief centres by removing tbe pu» pil teachers from the staff of an ordinary primary school and substituting a certain number of ex-pupil teachers who have qualified themselves by success in examination and by satisfactory progress in the art of teaching in its elementary stages. This schem e would be comparatively inexpensive, as the extra cost would be, in some cases at least, confined to the payment of such students at a salary of, say, £6O per annum, less th© sum set down in the scale for the pupil teachers that are replaced. More advanced instruction in theory might well bo left to lecturers on the science of e'lu» cation in connection with university colleges. Whether or not the scheme her© outlined is adopted, it is essential, th© Commissioners hold, that increased provision should b© made for the training of frachars. SUMMARY OF THE RECOMMENDATIONS. As the result of the inquiries and de_ liberations of th© Commissioners, they advise : 1. That Scale No. 1 comes within a £4 capitation. 2. That Scale No. 2, estimated, on a £4 2s 6d capitation, fulfils conditions that will, in our opinion, greatly benefit primary education. Therefore wo strongly recommend its adoption. 3. That th e scale come into operation on the Ist day of January, 1902. 4. That, as stated in th e body of th© report, two years be allowed for adjustment of salaries in certain cases.. 5. That a modification in the system of the certificates of teachers b e adopted. 6. That the pupil teacher system b® amended. 7. That training schools for teachers b® established, and that, pending the introduction of a general scheme, existing institutions receive special consideration. [Copies of scales No. 1 and 2 are appended by the Commissioners to the report.] DISCUSSION IN THE HOUSE. When the report of the Commission was laid on the table of the House, Mr Palmer expressed a desire to see our educational system brought into con. formity with the systems in force iu the Australian colonies. Mr Thomas Mackenzie pointed out that this colony was peculiarly constitu® ted geographically, and a scheme had to be framed to meet these peculiarities. If the smaller educational districts wer Q to get that assistance they deserved, it would be necessary to adopt a colonial scale based on a £4 2s 6d capitation. " Mr Pirani thought that the powers of the education boards should b e extended in regard to th e appointment and removal of teachers.

Mr Seddon said it was not advisable to debate this question at present. Members should carefully study the Commission’s report. He did not believe in making onr whol© education system uni_ form, as he considered the differentiation that existed at present really improved th© system, and gave a more complet® schem© than existed in Australia. This colony, he contended, had nothing to learn from Australia in this respect. H* had v not yet perused the Commission’s report, so he could not say whether or not h e thought its adoption advisable. The Government would carefully corn* aider the report, and do what was thought best for the teachers and the schools. He was pleased to hear that the Commission had not found very grave difficulties in the way of keeping within the £4 capitation limit. If, however, an ideal or complete scheme could be obtained for half a crown increase in capitation, he would giv© it his assistance. If advisable, the Government