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Hadow (1928) Notes on the text
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The Hadow Report (1928)
Books in public elementary schools
Chapter 7 Summary of principal conclusions and recommendations
77. Our conclusions and recommendations are as follows: Expenditure on school books 1. The evidence indicates that in a number of administrative areas the expenditure on books (including works of reference for school libraries) is seriously insufficient and that in consequence many schools are inadequately supplied with suitable books. (Chapter 3, Section 49). 2. We accordingly recommend that authorities should look afresh into the whole question of the supply of books in the public elementary schools, and, where necessary, take appropriate steps to increase the total allowances granted for school supplies, and to ensure that any additional sums thus made available may be used for providing the schools adequately with books suited to their special needs. (Chapter 3 Section 49). Administrative arrangements for controlling expenditure on school books Scales of inclusive allowances 3. (a) We agree with the majority of our witnesses that in practice the most satisfactory method for regulating expenditure on books is for the authority to fix a scale of inclusive allowances for books, stationery and apparatus, with a special fund to meet particular circumstances. (Chapter 3, Section 42). (b) We are not satisfied that it is desirable to establish a fixed grant for school books apart from the general grant for school supplies, but we suggest that, in areas where for years past the expenditure on books has been low, it might be advisable that the authority, while not establishing a separate maximum for books, should specify a minimum sum per head to be spent on books only. (Chapter 3, Section 45). 4. We recommend that authorities should provide a separate requisition form for school books. (Chapter 3, Section 44). Scrutiny of requisition forms for books 5. We recommend that, apart from considerations of cost (to which of course due regard must be paid), the scrutiny of requisition forms for books should be conducted solely from the educational point of view. The needs of each individual school, and any special local circumstances, should be taken into account. In cases where it seems necessary to cut down a requisition for books, the list should be returned to the head teacher to make the adjustment needed in the manner least detrimental to the work of the school. (Chapter 3, Section 46). School stock books 6. We recommend that school stock books should be so arranged as to render it possible to enter consecutively under heads of subjects school books and works of reference as distinct from apparatus. (Chapter 3, Section 47). The book item in education accounts 7. The evidence shows that owing to the existing method of keeping accounts authorities are unable without great expenditure of time and trouble to separate their expenditure on books from that incurred on stationery and other items of educational supply. (Chapter 3, Sections 43 and 49). 8. We accordingly recommend that authorities should revise the methods of keeping their accounts so that expenditure on books for public elementary schools should be shown as a distinct item of expenditure. (1) (Chapter 3, Section 43). 9. We further recommend that the Board of Education and the Ministry of Health should be asked to confer with local education authorities as to the possibility of modifying the existing official form of education account in such a way as to obtain uniformity of practice, and to secure greater precision, by presenting separately and in greater detail some of the items now included under the two general headings 'Books and stationery' and 'Furniture, apparatus and equipment'. (Chapter 3, Section 43). School libraries 10. We consider that every school should be provided with a permanent collection, adequate for its special requirements, of works bearing on the various branches of the curriculum, chosen and arranged for their appeal to children of different ages. In larger schools and particularly in selective modern schools and advanced classes, it may be desirable that the allocation should be made with a view to the provision of separate class libraries for some at any rate of the higher classes. It should rest with the head teacher in each instance to decide after consultation with the staff whether it is more satisfactory to keep the whole collection together as one school library, or to apportion some of the books among the different classes. (Chapter 4, Section 54). Accommodation and arrangement of the school library 11. In accordance with the evidence of our witnesses, we emphasise the importance of providing adequate accommodation for the school library. The books should be placed on suitable shelves designed for the purpose, and should be systematically arranged and catalogued. (Chapter 4, Section 54). The maintenance of school libraries 12. We consider it most important that the permanent school libraries should be kept at as high a level of efficiency as possible; and that it should be a definite duty of the officials of the local education authority, or of the urban or county librarian acting on behalf of the authority, to cooperate regularly with the teachers in the systematic overhauling of the books, with a view to returning any works to headquarters for binding or repairs, for the issue of fresh copies of worn out books, or for discarding works which have become obsolete. (Chapter 4, Section 54). 13. We regard it as most important that the older scholars should be encouraged to consult works of reference both in the school library and in any available public library; and we accordingly recommend that they should be taught to make regular use of the books in the school library, and that its method of classification should be explained to them. (Chapter 4, Sections 54 and 58). Financial responsibility for provision of school libraries 14. We understand that in a number of urban areas and in a few counties complete school libraries are supplied to some or all of the public elementary schools in the area from the urban or county library. While recognising that certain advantages may attach to this system, we consider that the responsibility for the provision of school libraries should rest with the local education authority and that it should provide the funds. We think, however, that the education committee would be well advised as a rule to seek the cooperation of the library committee and the expert assistance of the librarian. We would point out that one method of securing effective cooperation in urban areas is that the education committee should include members of the library committee, and that the library committee should include members of the education committee. (2) (Chapter 4, Section 56 (a)). Cooperation between public elementary schools and urban and county libraries Urban areas 15. We commend the practice now obtaining in many public libraries of reserving special rooms, or portions of rooms, as reading rooms for children, and consider that all public library committees should, where possible, organise juvenile lending departments. The children should, if possible, be allowed personal access to the book shelves in the juvenile department. The staffs of juvenile reading and lending departments should be carefully selected on account of their knowledge and sympathy with children and tact in dealing with them. Teachers, on their part, should encourage their pupils to use the juvenile reading and lending departments of public libraries in areas where they are available. To this end they should from time to time, in concert with the librarians, organise visits of whole classes to the public library, at which the contents, system of classification and method of obtaining books, whether for purposes of reference or on loan, might be explained to the scholars by a member of the library staff or by a teacher who has made a special study of the subject. In districts where a suitable juvenile reading room is available the scholars might be encouraged to use it for purposes of reference and general study. We regard it as specially important that children in urban areas, during their time at school, should acquire the habit of using the reading rooms and reference and lending departments of public libraries, and that they should be informed on leaving school of the facilities afforded to adult readers. (Chapter 4, Sections 54 and 58). County areas 16. We regard it as highly important that scholars in public elementary schools in all parts of county areas should be enabled and encouraged to obtain on loan suitable books for general reading from the local centres of county libraries, and we accordingly recommend that, in districts where this is not at present easy, the county library committee should take steps to remodel the library organisation for this purpose. (Chapter 4, Section 59). The circulation of sets of books for general reading 17. We regard the practice of circulating sets of books for general reading either in the school or at home to schools both urban and rural as a useful arrangement. It should be possible to use the machinery of county libraries more extensively than at present for circulating such sets of books. (Chapter 4, Section 57). Reference books for teachers 18. We recommend that, where a special teachers' library is not provided by the local education authority, the urban or county library should contain an educational section available for teachers. We understand that nearly all library authorities now avail themselves of the facilities offered by the Central Library for Students, from which they obtain individual volumes for applicants, including teachers. (Chapter 4, Section 60). 19. The libraries of various provincial universities and university colleges have been generous in affording special facilities to teachers for consulting and borrowing books, and we consider it is highly desirable that such opportunities should be extended so far as is possible without impairing the value of such libraries for the students and the academic staff, for whom they are primarily intended. (Chapter 4, Section 60). General cooperation between individual libraries in urban and county areas, and between all such libraries and public elementary schools 20. We think that general cooperation between urban and county libraries and public elementary schools is the most economical and effective method of increasing within the near future the total supply of books available for pupils and teachers in such schools. From this point of view we consider it of great importance that the different library authorities throughout England and Wales should cooperate with one another in order to increase the scope and efficiency of the public library service as a whole. We find ourselves generally in agreement with the recommendations to this end made in the recent Report of the Public Libraries Committee. In particular we regard it as especially desirable that those areas for which no statutory library provision has yet been made or apparently contemplated should, without delay, either singly or in combination, be brought under the operation of the Public Libraries Acts. (Chapter 4 passim, and Section 61). The volume, character and quality of the existing supply of school books Note It is obvious that the books used in elementary schools should be excellent in quality as well as adequate in numbers. The children should learn from them to admire what is admirable in literature, and to acquire a habit of clear thought and lucid expression. The following conclusions, suggestions, and recommendations (numbers 21 to 31 inclusive) are put forward as means which will, in our opinion, lead to the attainment of this end. Books for pupils in senior schools and divisions 21. In view of the new outlook in education for children over the age of 11, we are of opinion that there is a need of books for older pupils adapted to the different types of curricula and to methods of individual and group work and supervised private study. There appears also to be a need for more works of reference within the capacities of the pupils. (Chapter 2, Section 26). Books for selective modern schools and advanced classes 22. In view of the development of more advanced instruction with an industrial, agricultural, commercial or domestic bias in selective modern schools and advanced classes, where the pupils remain in increasing numbers up to the age of 15 or even 16, there is a growing demand for books specially adapted for these students. (Chapter 2, Section 27). Illustrations, maps etc, in class books 23. We fully recognise that many books gain largely in interest by suitable illustrations. Illustrations are indeed essential in books for infants and young children. But we think that many of the illustrations in current use, particularly in books for older children, are unnecessarily elaborate, and, especially if they are coloured, increase the cost of production without proportionately adding to the usefulness of the book. Similar considerations apply to some of the small maps, plans etc. which are often included in school books on geography, history and literature. We would draw attention to the inappropriateness of many illustrations, and still more to the fact that they are often unsuitably placed in relation to the part of the text which they are intended to elucidate. (Chapter 2, Section 23). Illustrations etc. bearing on history, geography and science, and other branches of the curriculum 24. We think that local education authorities and teachers in public elementary schools might with advantage make more use of the various publications issued by the public museums and art galleries and by commercial and non-commercial associations throughout the country. Further we would urge those concerned with the production of school books, and the local education authorities, to give due regard to these sources. (Chapter 2, Section 23 and Sections 30 and 31). The Bible 25. (a) We suggest that one or more well printed copies of the Bible in large and attractive type and form should be included in each school library, and we recommend that every elementary school child who can read sufficiently well should be provided with a copy of one or more portions of the Bible, suitable for study, in a similar type and form. (b) We consider that there is room for a good anthology of the finest passages of the Bible suitable for school use and produced at a reasonable cost. (3) (Chapter 2, Section 28). History 26. We recommend that history books should be reviewed from time to time so as to ensure that they are in line with the results of modern research. (Chapter 2, Section 30). Geography 27. We regard it as most important that the statements in geography textbooks also should periodically be reviewed in the light of the political changes and rapid economic developments in the modern world; we recommend that particular attention should be given to the provision of supplementary geographical reading matter which has special significance for British children. (Chapter 2, Section 31). Science 28. We regard it as important that in books on science intended for use in public elementary schools the different scientific principles should be more freely illustrated from examples and applications that have come, or are likely to come, within the pupils' range of experience. We call attention also to the special character of the science textbooks required for use in modern schools and advanced classes. (Chapter 2. Section 34). Music 29. We recommend that separate class books of exercises in sight-reading should be provided for each pupil from about the age of 9 onwards. We also consider that small cheap manuscript books with staves should be provided for the children from quite an early age for taking notes on music. (Chapter 2, Section 35). We suggest that local book list and book room committees, (4) in preparing lists of books suitable for use in public elementary schools, should devote special attention to the arrangement and classification of musical scores and books on music, and that care should be taken to display the collection of works on music in the book room in an orderly and attractive manner. We think too that the authority should, where possible, provide a piano in the book room or in some adjacent room, so that teachers may be able to try over songs before making a final selection. Failing this, teachers should be allowed to have the loan of a few books or separate copies of school songs so that they could try them over at home. (Chapter 2, Section 35). Practical instruction 30. Our evidence indicates that there is still a wide field for good books published at a reasonable cost on the various branches of practical instruction. We recommend that a small collection of special books and periodicals bearing on the different forms of practical instruction should form an integral part of the normal equipment of schools and centres, and in any case provision should be made in the school libraries for books both for teachers and pupils. We consider it specially important that in modern schools, particularly those with a practical bias, generous provision should be made for the supply of publications connected with the branches of practical instruction taught in the school. (Chapter 2 Section 37). Name of author and date of publication 31. We would urge very strongly that all books intended for use in schools should contain the author's name and the date at which they were published. (Chapter 2, Section 23). The supply of Welsh books for use in public elementary schools in the bilingual districts of Wales 32. Recognising the existence of the bilingual problem in the public elementary schools of Wales we find ourselves in agreement with the general principles for the improvement of Welsh school books put forward in the Report of the Departmental Committee on Welsh in Education and Life (5) In particular we consider that the existence of this problem warrants the provision by Welsh local education authorities of more generous grants for books in elementary schools than have hitherto been customary. (Chapter 2, Section 40). The use and acquisition of books by pupils, and arrangements for keeping books in school The possession of books by pupils 33. (a) We consider that every pupil should be allowed, at least in school, to retain possession of all the books which he is constantly using, and that they should remain in his keeping until the end of the term or year in which he requires them. (Chapter 6, Section 73). (b) We think that the older scholars from the age of 11 and upwards should in addition be encouraged to take books home. (Chapter 6, Section 73). (c) We agree with the suggestion made by several of the witnesses that books on certain subjects in which individual pupils have displayed special aptitude or interest might, towards the end of their school life, be given to them as a privilege or reward. We also suggest that authorities might allow head teachers to give their pupils suitable books which have been removed from the school stock book, but which are still in sufficiently good condition for further use. In addition. authorities, when providing senior pupils with books likely to be of permanent interest and value, and to be required by them throughout their whole course, should consider the possibility of giving such books into the keeping of each scholar at the beginning of the course, and of allowing scholars under appropriate conditions to retain them on leaving school. This will apply especially to Bibles, atlases, dictionaries and certain kinds of history books and anthologies of verse. (Chapter 6, Section 73). Arrangements for keeping books in school 34. If, as we have recommended above, the books used by each scholar are placed under his own control, it is essential that locker desks should be provided, or nests of lockers or small compartments, either in cupboards or in some kind of framework which can be closed by the teacher at the end of the day's work. In view of the fact that inadequate and unsuitable accommodation for keeping class books inevitably tends to restrict their free use, we urge that suitable accommodation of the kind indicated should be provided whenever and wherever possible. (Chapter 6, Section 74). Provision of opportunities for private study in the school building 35. We recommend that in cases where it is difficult or impossible for the children to study at home, and where there are no special facilities for juvenile readers in the local public libraries, the authority, in consultation with the head teacher, might consider the desirability of assigning a room at the school on certain days of the week for the use of older pupils, so that they might read for themselves out of school hours, under proper supervision. It is highly desirable that the room assigned for this purpose should have some of the equipment of a library. (Chapter 6. Section 74). Sources of guidance for teachers in the selection of books 36. One of the most serious responsibilities in education is the selection of books, and it is on the teachers, in the first place, that this responsibility rests. We regard it as among the most important of the functions of training colleges to develop in their students a capacity to form a just appreciation of the merits of different books. In order that this capacity may be turned to good account, we consider that it is necessary for the teachers to devote a considerable time apart from 'school hours' to reading the new works that from time to time appear on the subjects with which they are concerned. (Chapter 5, Section 62). 37. The evidence indicates that teachers often derive much valuable guidance on the choice of school books from the different courses for teachers organised by the Board, from the Board's inspectors, from inspectors and officials of the local education authority, and from the librarians of urban and county libraries. We would suggest that teachers would be well advised to take the fullest possible advantage of these sources of guidance in the selection of books. (Chapter 5, Section 65). Training colleges 38. We recommend that the problem of selecting school books should be kept steadily in view throughout the course at the training college, and that the students should be brought to realise the importance of a wise choice both of books for use in class, and of works of reference for the school library. To this end instruction on the proper selection of class books and library books should be included in the courses on the various subjects of the curriculum, and a special section of the library should be reserved for school books of different types. (Chapter 5, Section 64). 39. We suggest that in any schools used as practising schools, the students should be encouraged to make themselves acquainted with the class books in use, and with the available works of reference in the school libraries. (Chapter 5, Section 64). 40. We recommend that some general instruction should be provided in training colleges on the management of school libraries. (Chapter 5, Section 64, and Chapter 4, Section 54). Temporary exhibitions of school books and permanent book rooms 41. While we recognise that the information obtained at temporary exhibitions of school books, whether held in connection with teachers' conferences, or organised specially by authorities in concert with educational publishers, must be of considerable use to teachers, we nevertheless think that permanent book rooms are of even greater value for the purpose. We accordingly recommend that those authorities which have not already done so should take steps to establish book rooms. Where possible each authority should establish its own book room, but in many instances neighbouring authorities might find it more convenient to combine for this purpose. (Chapter 5, Section 67). Book list committees 42. We recommend the establishment of local book list committees to draw up short annotated lists of books suitable for use in public elementary schools. These might be set up by a single authority in large areas, or by several neighbouring authorities in combination. We regard it as highly desirable that the general management of book rooms should, if possible, be entrusted to committees responsible for drawing up and revising the book lists. If for any reason this arrangement cannot be adopted, we would suggest that members of the book list committees should be included on committees responsible for the management of book rooms. Book list committees should consist mainly of teachers, together with some members and officers of the local education authority or authorities. It is, however, in our view most important that any lists of books prepared by these committees should be regarded as merely conveying suggestions, and that in no case should they restrict the freedom of the teacher in drawing up his requisition for books. (Chapter 5, Section 68). General questions relating to the production of school books Central Advisory Conference 43. We recommend that the Board of Education should convene from time to time a Central Advisory Conference, which should include representatives of the local book list committees in the different divisional areas, (6) to deal with general questions relating to the supply, quality and content of books for public elementary schools. (7) Local book list committees will submit their observations on the existing provision of books, on the principal deficiencies which exist, and on the subjects for which books are most urgently needed. In practice it may be found desirable that divisional conferences of representatives of the local book list committees should be held from time to time for collating the information submitted by them. (Chapter 5, Section 70). (Signed) Sir WH Hadow (Chairman)
Robert F Young (Secretary)
Footnotes (1) This may not always be found practicable in the case of departments for infants only. (2) In county areas such cooperation is already secured by the constitution of the county library committee. (See Section 53, p. 70). (3) Such an anthology would be very useful in connection with the Syllabuses of Religious Instruction. (4) See Recommendation No. 42. (5) The principal recommendations in the report on Welsh in Education and Life which bear directly on the selection and provision of books for public elementary schools are quoted at the end of Chapter 2, section 40 of this Report. (6) For purposes of inspection by the Board of Education, England and Wales are divided into the following divisional areas: Northern; North Eastern; North Western; West Central; East Central; Eastern; Metropolitan; South Eastern; South Western; Wales and Monmouthshire. (7) It is assumed that questions connected with the publication and production of Welsh books for use in public elementary schools in the bilingual districts of Wales would not fall within the province of such a Central Advisory Conference, but would be dealt with by the Press Board of the University of Wales, as suggested in recommendation 15 of the Report on Welsh in Education and Life, which runs as follows: 'That the University Press Board act as an Advisory Publication Board to guide publishers and encourage authors in the publication and production of Welsh books for children.' See the end of section 40 (Chapter 2). 
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