USA > Massachusetts > Norfolk County > Norwood > Norwood annual report 1923-1927 > Part 97
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now. Also as the population may develop another primary school may be needed toward the western boundary midway between the Winslow and Shattuck Schools.
Summary of Program. The following table will serve to show the provisions made possible by the suggested program to meet the needs of the elementary schools until such a time as the town reaches a population of 28,000 to 30,000 people.
Schools
Number of Rooms
Capacity
New "Fisher" School
12
420
Winslow (Addition)
18
630
New South East
12
420
Shattuck (Addition)
18
630
Balch
20
700
Balch (Annex for primary)
6
210
Winslow (Annex for primary)
6
210
Total Elementary Pupils
3,220
Each of the six large elementary schools as proposed should be equipped with a small auditorium to seat about two hundred pupils and a small gymnasium about fifty by seventy feet for a health and
229
recreation program. Also space should be provided for practical arts for both boys and girls beginning in the fifth and sixth grades. With this equipment the capacity of each school would be increased by at least twenty-five per cent. The accompanying map will indicate the approximate location of the future elementary school buildings as recommended in this report. (See map on page 230.)
1600
1800
2000
2200
2400
2600
2800
3000
3200
3400
3600
3800
4000
4200
4400
4600
480C
5000
5200
5400
3600
3800
6000
0200
6400
€600
19/2
1913
1814
1915
19/6
1917
1918
19/9
1920
1921
1922
1923
1924
1925
/926
1921
1928
1929
1950
1931
1932
1933
1934
1935
1936
1937
/938
/939
1940
1941
1942
/ 943
4987
5773
6360
1943 to be 5773
Estimated Total Enrollment in
FUTURE TOTAL SCHOOL ENROLLMENT
NO: - 12
WALPOLE.
POND
Fatur
Senior High School adition
No.1.
JAGLAN
Future Elementary
--
WAL POLE
SMANYCK addiva
2ª dr. H.
No. 4
winslow Addition No. 6.
Complete No.9.
Additun
DAHATAN
WESTWOOD.
Ba
LATALLA
SLEVELAN
Fisher hat New Building NO.3
South East School ew Building
No. 5.
-
Location of Future Buildings
CUT No. 13
PLAN OF THE TOWN OF NORWOOD MASS.
January 1920.
=
SCALE
Geo A Smith Town Engineer.
231
A STUDY OF THE SCHOOL FINANCES
By Herbert Blair
Increasing Cost of Education:
It is not difficult to understand why there has been questioning in Norwood regarding the increased cost of the public schools. During the last five years (1922-23 to 1926-27 inclusive) the school population in average daily attendance has increased from 2671 to 3096 or 16%, while the direct expense for school support in- creased from $226,774 to $315,408 or 39%. The tax rate increased for this same period from $25.30 on the $1000 of assessed valuation to $29.00 or almost 15% in spite of an increase in the assessed val- uation during the five years of 28%. For construction items also in Norwood during these last five years, nearly as much was spent for school buildings as was spent during the preceding 50 years (1872-1922, $722,992; 1923-1927, $611,418). The number of pupils in average daily attendance in 1925-26 was 3099 or three more than this past year when it was 3096. On the other hand the direct expense of conducting the schools increased from $265,877 for 1925-26 to $315,408 for 1926-27. Certainly the taxpayer is entitled to know why with no additional pupils the expense of instruction increased 18.5%.
Educational Results as Basis for Comparision.
It is not a simple matter to analyze school costs. The expense of giving a year's schooling to a pupil has many variables. One may consider only the amount of money spent with no con- sideration for what was purchased. On the other hand the changes wrought in the lives of the pupils might be considered, using as a measure the achievement of the pupils, or even less tangible than this, we might consider the benefits to society in later years that are the direct outgrowth of the education given to the children of our schools.
We have one objective measure of the achievement of the pupils that is developed sufficiently to be considered significant but it is so significant that it scarcely can be over emphasized. If our school organization, curriculum and teaching technique were so adjusted as to give a complete elementary and secondary school education in twelve years time to "all the children of all the people" and every child who entered the elementary school at six years of age completed the senior high school twelve years later, one twelfth of the total number, or 8 1-3%, would be in each of the twelve grades of the school system. Or if provision were made so that as many of the brighter children were making rapid progress as there were slow children retarded in their progression
232
from grade to grade, there would also be 8 1-3% of the total enrollment in each grade.
Needless to say no school system has so adjusted its organization as to bring about this result. When, if ever, it is so adjusted as to give a complete twelve year program to each child our present school costs will be considered very low in comparison. For the cities of the country having an eight year elementary school and four year high school, which does not include most of the cities of the south since these have seven years in the elementary school, the actual reuslts fall far short of this. By some peculiar coinci- dence, the total enrollment for the cities reporting to the Bureau of Education was just one thousand times greater than the total enrollment in Norwood for November first, 1927, so that the figures as well as the percentages can be compared grade by grade.
Enrollment-Percentage in Each Grade:
Enrollment by grades in cities reporting to the Bureau of Educa- tion having an eight year elementary school and four years high school is set up for comparison with the Norwood enrollment. This includes those having the six year elementary, three year junior and three year senior high school, but excludes those cities of the south with a seven year elementary school and those of New Eng- land with nine years in the elementary school.
Grade
Enrollment by Grades in cities reporting
Percent of total in each grade
Norwood Nov. 1 1927
Percent of total in each grade
I
502,000
15.1
295
9.0
II
384,000
11.6
296
9.0
III
368,000
11.0
319
9.7
IV
363,000
11.0
321
9.7
V
352,000
10.6
353
10.7
VI
326,000
9.9
382
11.5
VII
280,000
8.5
276
8.3
VIII
321,000
7.0
316
9.6
IX
208,000
6.3
240
7.3
X
135,000
4.1
202
6.1
XI
93,000
2.8
169
5.1
XII
73,000
2.2
128
3.9
Total
3,318,000
100.0
3,322
100.0
Efficiency of System Measured by Enrollment:
It can readily be seen that Norwood's enrollment in the first four grades closely approaches this theoretical standard of 100% effi- ciency being only an average of one percent above this standard
233
of 8 1-3% in each grade. Likewise Norwood's enrollment in the last four grades is one-half higher than for all cities as a whole and for the last two years of the high school is almost twice as satisfactory. It is certainly true that Norwood for its greater expenditure per pupil is getting greater educational results. Be- cause our communities have not yet been educated to the point where these less tangible measures are fully appreciated or be- cause of our failure to develop objective measures of achievement of pupils, most analyses of school costs confine themselves to a consideration of the money spent.
Cost to Norwood Compared with Suburban Towns:
How much should Norwood spend on its schools? Not having a more accurate yard stick we must depend upon the old device of the table of comparative cities. Norwood is one of the residential suburbs of Boston. These suburban cities of the second class have a valuation behind each pupil in average daily attendance ranging from $14,000 and more for Winchester, Wellesley and Brookline to less than $5,000 for Natick. The middle valuation for cities of this group is about $8,000. Norwood with $7,878 of assessed valuation behind each child to be educated is in moderate circumstances, neither so poor that she cannot afford to give a good education to her children nor so wealthy that she can afford to see any of her money wasted.
Table I. Data for 1927 for the Eleven Suburbs of Boston that are Most Nearly Comparable in Population and Wealth Behind Each Pupil in School
1927
1927 Valua- tion
Rank
Expense per $1000 Valuation
Rank
Ave. Daily Att.
Rank
Elem. A. DA.
Rank
H. S. A.D.A.
Rank
per Pupil
Belmont.
8966
1
$ 8.40
11
3060
3
$73.41
6 $137.67
3
Needham
8819
2
9.23
9 1872
6
79.08
5 131.74
4 ]
N. Attleboro.
8761
3
9.51
8
1079
11
71.47
7 121.93
6
Lexington .
8507
4
9.77
6
1821
7
86.49
2
111.73
10
Reading
7905
5
11.05
2.5
1739
8 84.83
3
114.85
9
Norwood.
7878
6
11.05
2.5
3096
2 83.98
4
144.92
2
Walpole .
7641
7
10.11
4 1489
9
71.28
8 116.41
8
Winthrop.
7546
8
8.93
10
2962
4 62.87
11 118.28
7
Framingham .
7115
9
9.86
5 3967
1 66.39
9
126.03
5
Dedham.
7081
10
9.65
7 2849
5
64.93
10
110.37
11
Concord
7071
11
13.99
1 1172
10
87.49
1 146.75
1
·
234
Cost
Cost
235
Table one lists the five suburban cities just above Norwood in wealth per pupil and the five just below with some figures show- ing how well each city is meeting its educational problem. For this year of 1926-27 three of these eleven cities, Concord, Lexington and Reading, spent more per pupil on those in the elementary school than was spent in Norwood and but one, Concord, spent more on each high school pupil. Compared then to these ten other cities of approximately equal wealth and social need Norwood was generous in her support of the elementary schools, the most expensive city spending but four per cent more and the least expensive city spend- ing 25% less. For High School instruction the most expensive city of the group spent but one and a quarter per cent more and the least expensive city providing a form of instruction that cost 24% less than that furnished in Norwood.
Since, however, the expenditures for a single year tell a very in- complete story table II was prepared to show how the expenditures for school purposes in these eleven cities compared during a five- year period.
Table IIa. Cost Per Elementary Pupil in Average Membership in Eleven Suburban Cities Similar in Size and Wealth
1923
1925
1926
Cost
Rank
1924 Cost
Rank
Cost
Rank
Cost
Rank
Cost
1927 Rank
Belmont.
$67.96
7
$67.85
5
$69.00
7
$72.73
7
$73.41
6
Needham.
70.67
6
66.93
6
72.62
5
74.45
6
79.08
5
N. Attleboro
52.06
11
61.78
9
78.94
2
76.06
4
71.47
7
Lexington .
74.16
3
64.01
7
70.93
6
79.82
3
86.49
2
Reading
72.10
4
69.76
4 74.15
4 75.34
5 84.83
3
Norwood.
70.99
5
70.77
3
67.08
8 69.58
8
83.98
4
Walpole.
77.64
2
82.96
2
78.59
3
87.23
1 71.28
8
Winthrop
53.09
10
52.48
11
54.56
11
64.60
11
62.87
11
Framingham.
61.15
8
63.07
8
63.55
10
66.86
9
66.39
9
Dedham
60.55
9
61.07
10
64.57
9
65.52
10
64.93
10
Concord .
82.00
1
89.23
1
87.43
1
84.96
2
87.49
1
236
Table IIb. Cost Per High School Pupil in Average Membership in Eleven Suburban Cities Similar in Size and Wealth
1923
1924
1925
1926
1927
H. S.
Rank
H. S.
Rank
H. S.
Rank
H. S.
Rank
H. S.
Rank
Belmont.
149.81
1
135.59
1 139.95
1
135.92
2
137.67
3
Needham
93.53
10
100.47
11
116.98
3
107.49
8
131.74
4
N. Attleboro
106.40
6
112.90
4
104.10
10
139.51
1 121.93
6
Lexington
104.75
8
100.06
10
95.61
11
102.97
10
111.73
10
Reading .
113.06
4
110.67
6
115.14
5
109.55
7
114.45
9
Norwood
134.25
2
129.03
2
118.57
2
116.61
5
144.92
2
Walpole.
108.43
5
111.95
5
112.34
7 113.71
6 116.41
8
Winthrop
100.10
9
107.26
7 104.13
9 102.65
11
118.28
7
Framingham.
115.82
3
106.49
8 115.23
4 133.13
3
126.03
5
Dedham .
92.78
11
100.64
9
106.03
8
106.04
9
110.37
11
Concord
106.13
7
116.87
3
114.25
6
130.49
4
146.75
1
/
237
238
Table III. Rank of Eleven Cities in Per Pupil Costs for Elementary and High School Instruction During a Five Year Period
1923
1924
1925
1926
1927
Av.of 5 years
El.
|H.S.
El.
H.S
El.
H.S.
El.
H. S.
E
H.S.
El
H.S.
Belmont
7
1
5
1
7
1
7
2
6
3
5.2
1.6
Needham
6
10
6
11
5
3
6
8
5
4
5.6
7.2
N. Attleboro
11
6
9
4
2
10
4
1
7
6
6.6
5.4
Lexington
3
8
7
10
6
11
3
10
2
10
4.2
9.8
Reading
4
4
4
6
4
5
5
7
3
9
4.0
6.2
Norwood
5
2
3
2
8
2
8
5
4
2
5.6
2.6
Walpole
2
5
2
5
3
7
1
6
8
8
3.2
6.2
Winthrop
10
9
11
7
11
9
11
11
11
7
11.0
8.6
Framingham
8
3
8
8
10
4
9
3
9
5
8.6
4.6
Dedham
9
11
10
9
9
8
10
9
10
11
9.6
9.6
Concord
1
7
1
3
1
6
2
4
1 |
1
1.2
4.2
It will be seen that Norwood's rank in expenses for the elemen- tary school pupils ranged from third to eighth an average of between fifth and sixth place for the five years with a steady decline each year until 1927. It will also be noted that the per pupil cost for high school instruction in Norwood steadily declined from $134.25 in 1923 to $116.61 in 1926, but jumped to $144.92 in 1927. More imperative than ever is the need for showing why 1927 should have been so expensive compared with previous years.
While it is necessary to keep an accurate record of all moneys received to safeguard both those responsible for the distribution of school funds as well as the funds themselves it is even more impor- tant to keep these financial records in such a manner that they may be used to determine policies in formulating the educational pro- gram. Because of the very complete and detailed analyses of school costs that are kept in the office of the superintendent of schools, supplementary to the financial records that are kept by the Town Clerk it is possible to arrive at a fairly satisfactory answer to
239
the question as to the reason for increased costs. These records dis- tribute the expense for schools under the main heads of (1) General Control which includes all administration costs; (2) Instructional Service which includes the salaries of supervisors, principals and teachers, the cost of textbooks and all other instruction supplies; (3) Operation of Plant including the cost of janitors, fuel, water, light, powers and janitors supplies; (4) Maintenance of Plant, which covers the costs of all repairs and replacements to buildings and equipment and (5) Auxiliary Agencies or the expense of Library, Health, Transportation, Recreation and similar school needs. Since the reports to the State are for a school year from September 1922 to August 31, 1923, for example, while the finan- cial records are kept for the town fiscal year, from January 1st, 1923 to December 31st, 1923, the figures are not exactly compar- able. The per pupil cost as given in the table is slightly higher than was actually the case because the per pupil in average daily attendance which was used as a divisor is for the school year of 1922-23 while the costs were for the fiscal or calendar year of 1923.
240
Table IV. Cost Per Pupil In Average Daily Attendance for the School Years 1923, 1924, 1927, Distributed by Function.
General Control
Auxiliary
2.16
2.14
3.22
Instruction Service
High School
131.00
128.00
134.00
Junior High School
69.00
67.00
86.00
Balch
54.00
53.00
54.00
Beacon
68.00
71.00
64.00
East
62.00
56.00
60.00
Guild
53.00
55.00
55.00
Shattuck
60.00
56.00
65.00
West
65.00
62.00
67.00
Winslow
52.00
51.00
56.00
Operation of Plant
High School
2
22.00
Junior High School
5 16.20
11.50
12.50
Balch
9.85
6.80
6.00
Beacon
13.10
9.60
8.25
East
15.50
10.75
13.40
Guild
12.50
8.90
9.80
Shattuck
10.00
8.40
10.60
West
15.50
12.50
13.00
Winslow
9.15
6.65
8.20
Maintenance
High School
2
3.90
Junior High School
5 1.35
1.38
1.37
Balch
1.78
2.80
1.95
Beacon
4.40
4.90
3.30
East
5.55
11.40
1.95
Guild
2.40
5.30
5.00
Shattuck
3.90
3.00
2.40
West
15.60
12.50
2.40
Winslow
3.35
3.20
1.00
1923
1927
$ 2.54
1924 $ 2.67
$2 .90
241
For the three years given in the table there was but a slight increase in general control. The additional clerical force in the superintendent's office was badly needed and has more than jus- tified the cost. The increase of the expense classified as auxiliary from $2.16 per pupil in 1923 to $3.22 in 1927 was almost entirely due to an increase in the health service rendered by the school.
The great bulk of the increased cost during the five years was due to three changes in the school. The housing of the senior high school pupils in a separate building did not increase the per pupil cost for instruction but it did double the per pupil cost for opera- tion and maintenance. It is always expensive to operate and main- tain a large building for a smaller number of pupils than it can accommodate. And further because the number of pupils in the senior high school increased over 50% in five years the total cost for instruction was a large item in the increased total cost.
The second of the three major reasons for increased cost was due to a 40% increase in the number of pupils attending the junior high school and a 25% increase in the cost of instruction for each of these junior high school pupils. This increased per pupil cost was due to a reduction in the number of pupils taught by each teacher and an increase in the salary schedule for the teachers.
The third reason for the increase is due to the expense caused from using small buildings. During the five years there was no increase for instruction in the large Balch School and the building was maintained and operated at a very low per pupil cost. On the other hand the per pupil cost for operation for the East and West Schools was more than twice as high as for the Balch and main- tenance costs were even more out of proportion. It should be noted that the chief difference between 1923 and 1924 in operating costs was due to the very high cost of fuel in 1923.
Granted that the tax rate is higher than for some other towns, granted that the bonded indebtedness with the required additional large payments for principal and interest have increased more than for the other suburban cities listed; granted that the per pupil cost for instruction has increased during the past year, are the tax- payers of Norwood carrying a heavier burden than is just and reasonable ?
Table V is an attempt to answer this question. An analysis of the assessed valuation of property in Norwood shows that nearly 70% of the tax burden is carried by residence and other land properties. That means that the home owners are vitally inter- ested in town and school expense. How much school tax does each pay ?
242
TABLE V Assessed Valuation of Residences (House and Land) from the 1925 Abstract of Valuations
Value in Thousands
Per cent of Total
Under
$1500
1.6 per cent
$1000
$ 1500 to
2499
6.6
"
$2000
2500 to
3499
15.1
$3000
3500 to
4499
22.0
$4000
4500 to
5499
21.0
$5000
5500 to
6499
12.0
$6000
6500 to
7499
9.0
$7000
7500 to
8499
3.6
"
$8000
8500 to
9499
3.6
$9000
9500 to 10,499
1.6
"
$10,000
10,500 to 11,499
1.1
$11,000
11,500 to 12,499
1.0
$12,000
12,500 to 13,499
.6
$13,000
13,500 to 14,499
.2
"
$14,000
Over 14,500
.4 "
$15,000
Few of the homes are assessed for large amounts, half of them being under $5,000, so that the total school tax paid is less than $75 each for more than half of the homes in Norwood. It is hard to believe that any considerable number of these home owners would object to an even larger school expense if they fully understood how small a sum they are actually paying for the large value they are receiving.
243
Recommendations
1. A continuation of the "pay as you go policy." For a growing community, the policy of issuing bonds to pay for elementary schools is as improvident as for a young married couple to attempt to spread over a term of years the payment for the first baby. For high school buildings, where several years will intervene before another building is needed, it may be advisable to spread the pay- ments over a period no longer than until another high school building will be needed.
2. An increase in the standard enrollment per teacher in ele- mentary junior and senior high schools alike.
3. An analysis of the per pupil per hour costs of instruction in the senior high school with a view to reducing the total high school cost. While there is no general agreement regarding the relative value to the pupil of the different subjects taught, there has been general agreement throughout the country that instruc- tion in Greek, for example, was not ten times as valuable as instruction in English, and Greek has disappeared from most high school curriculums. Other subjects might also disappear if the tax-paying public once realized their excessive costs due to the small demand for instruction in these subjects.
t
244
A PROPOSED SCHEDULE FOR A FUTURE
SCHOOL BUILDING PROGRAM
As a result of the foregoing studies of the conditions found to exist in the schools, their evident future needs, and of the finances of the Town of Norwood, a schedule for the erection of school buildings has been prepared to extend through a period of from fifteen to twenty years.
The aim has been to meet the urgent demands of the present and at the same time to plan with a view to the future. When com- pleted this schedule will provide the Town of Norwod with com- plete and modern school buildings for all of the children. See Map, page 230. The order in which these buildings are listed has been determined by the apparent needs and possibilities for adjust- ment while the building program is in process.
It is also aimed to spread the financial burden as evenly as possible through the years with an average of not to exceed $100,000 per year. The heavier load comes in the earlier years to meet the immediate needs, but is evened up during the following years. The schedule follows:
SUMMARY OF PROPOSED BUILDING SCHEDULE
Order
Building
Present Needs
Future Capacity
Year
Estimated Cost
Notes
1
Senior High
Plan not completed
1200
1928
$350,000
Relieve Jr. High
2
Junior High
Needed Addition
1000
1930
200,000
Complete plant
3
Fisher Lot
New Elementary
440
1932
150,000
Relieve all elementary schools
4
2d. Junior High
New Building
500
1934
300,000
Relieve Jr. High
5
South East School
440
1936
150,000
Relieve Balch
6
Winslow and
10 Room Addition
650
1938
100,000
Sell Beacon, West, and Guild
7
Shattuck
10 Room Addition
650
1940
100,000
8
2d. Junior High
Completed
500
1942
200,000
Average Cost=$100,000 per year. 15 years $1,550,000. Note: Future development may show that No. 5 and No. 3 might best be exchanged to relieve the Balch School.
245
Capacity reached
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1. Completion of the Senior High School, 1928. The Senior High School has little opportunity for adjustments to serve immediate relief. It must have an auditorium, a music department and as much additional classroom space as can be secured at this time. This should not be less than twelve rooms. It is estimated that this would cost about $350,000.
If it should be decided to co-operate with the Peabody Voca- tional School for Girls and erect a building to house the project, it would be a logical scheme to place this structure at the east of the Senior High School and to connect it by a corridor as a counter- part of the present gymnasium wing. The cost of this building cannot be estimated until the activities to be carried on are deter- mined and tentative plans drawn.
Administrative Adjustments: While the addition to the High School is being built the Junior High School will have to make larger use of the Civic Association buildings and to plan a more efficient organization of the teaching program in order to care for the expected increase of pupils.
When the addition to the Senior High School is completed a portion of the ninth grade can be assigned here during the erection of the addition to the Junior High School.
Also, in the elementary schools the pupils can be cared for by assigning forty pupils to a room instead of thirty-five and by some shifting of the districts to adjust the distribution among the schools.
It may be necessary to use the Everett building until the Junior High School is permanently relieved. Then this building should be abandoned.
2. Addition to the Junior High School, 1930: The needs of the Junior High School are an auditorium, a gymnasium, a library and an adjustment of the space for practical arts work. The total number of pupils to be accommodated should not exceed 1,000 pupils. It is estimated that this project will cost in the neighbor- hood of $200,000.
3. Elementary School on the Fisher Lot, 1932: This building should be a twelve-room school so planned that it can readily be increased to eighteen rooms when the population demands. This will cost about $150,000.
The completion of this building will relieve the Guild School of several hundred pupils. The East School can then be abandoned.
At this time the Guild School will be able to relieve the con- gestion in all of the remaining elementary schools.
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4. The Second Junior High School Begun, 1934: During this period of adjustment the Junior High School will suffer the great- est inconvenience of all the schools. The complete relief will not be felt until a second Junior High School is at least partially built to meet the demand. It is estimated that a section of this building will have to be built at this time costing about $300,000. The land for this site should be secured at once.
5. The South East Elementary School, 1936: Similar to the building planned for the Fisher lot should be another structure on the East side to relieve the Balch and Guild Schools. This building should be a twelve-room structure planned so that it may be increased to eighteen rooms when necessary. An estimate of $150,000 is suggested for this building.
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