(D) FOURTH PERIOD, 1885-1888.

By 1885 the school system of Arizona was ready to begin development along broader lines. There were nearly 10,000 children in the Territory, of whom about one-third were in regular attendance. There were now in Arizona 123 schools, with 143 teachers, and school property valued at $153,000. With this equipment and the experience derived from 14 years' efforts to found schools, it seemed that the time had come to mold the school law into more permanent form and to add to the school system higher institutions of learning. The Territory was not lacking in financial ability to take a step forward in education, and it had a population of nearly 50,000. Besides the two great railroads binding it to the East and West, a branch road linked it to the Gulf of California. Mining, farming, and stock raising were all making great progress, and the Territory enjoyed a degree of prosperity far greater than that of the country as a whole. Under such conditions the assembly convened in 1885. In work for education, no other assembly bears comparison with it except that of 1881, which brought the school system into existence and gave it definite form.

The governor's message.-Gov. Tritle, in his final message, joined in the recommendations of the retiring superintendent for (1) the separation of the office of county superintendent from that of probate judge; (2) limiting the power of school trustees, and their selection at a separate election; and (3) an improvement in the manner of levying county school taxes by boards of supervisors. The governor asserted that the question of the disposition of the school and university lands was of prime importance. He set forth the location of the 72 sections of university lands made in 1882, pointed out losses sustained by the entry of settlers through failure of the General Land Office to notify the local land offices of selections made, and the necessity of replacing these before available lands were taken up or denuded of their timber. He recommended the designation of the superintendent of public instruction as university land agent, and asked an appropriation to cover the expenses of inspecting public lands and taking such steps as would be found necessary for their preservation. He was undecided as to the propriety of creating a university and left the matter to the assembly. He asked that Congress be memorialized to permit the Territory to sell its school lands. To most of these recommendations regarding the public lands the assembly readily responded.

The assembly of 1885.-During the session of 1885 the school law was again subjected to revision. It was not possible to effect the separation of the office of county superintendent from that of probate judge, but that officer was required to visit each school in his

county once a year, and the compensation was fixed at from $300 to $600; an allowance was made in addition for postage and expressage. Separate elections were required for school trustees and their powers were somewhat curtailed. The estimate of the county superintendent was made the basis of the county school tax, and the maximum was fixed at 75 cents on each $100. This idea is one of the excellent policies urged by the early State school officials and it still survives in Arizona.

In order to raise the standard of scholarship among teachers and to attract superior teachers, a Territorial board of examiners was created to supervise the several county boards in the issuance of certificates. Credentials upon which certificates were issued and the branches upon which teachers were examined were definitely fixed by law. Such matters had been left too largely to local boards of examiners in the past. The Territorial school tax was reduced from 30 cents to 3 cents on each $100. It was felt that the counties should bear more of the school burdens and that district taxes might be utilized to lengthen the term. The idea of large taxing units is another school policy advocated early in the State's history which still survives. The old provisions against sectarian teaching were reenacted, and instruction in citizenship was required. During the session the governor by special message denied the right of the legislative body to provide for the election of the State superintendent of public instruction, but as no court decision had been made on the matter the governor solved the difficulty by appointing Robert L Long superintendent of public instruction for the term of two years, a position to which he had been chosen by a vote of the people of the Territory. The council confirmed the appointment, and the assembly amended the law to meet the governor's views.

Though the new school law was of great value, the acts creating the university and the normal school were of equal importance. These institutions were not created as the result of a popular demand alone, but were rather of a legislative combination. The Prescott people were anxious to retain the capital, and Phoenix and Tucson also wanted it. To satisfy all parties it was agreed that Prescott retain the capital, that Tucson become the seat of the university, and that Tempe, near Phoenix, be chosen as the location of the normal school.

In framing the law creating a normal school, the legislators were evidently in doubt as to the exact nature of the institution. It had features of a normal school and of an agricultural college. The offer by the Tempe people of a site was accepted and the assembly provided that the section of school land lying within the limits of the town, "the best in the Territory," should be set aside "to be used as a farm for said normal school." Five thousand dollars was ap

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propriated for a building, and $3,500 for the support of the school during the years 1885 and 1886. An annual tax of 2 cents on $100 of assessed valuation provided for maintenance in the future. The school was also endowed with 20 sections of school land belonging to the State of Arizona, selected from unappropriated land in the Salt River Valley. The building was completed and school opened in February, 1886, with 33 pupils in attendance.

The work of Supt. Long.-The new State superintendent of public instruction, Robert Long, had been principal of public schools in Phoenix and served as probate judge and county superintendent in Gila County. The county superintendents and the new territorial board of examiners were appointed by the State superintendent, and through them and the Territorial board of education Supt. Long was able to accomplish much for the schools. The rules for certification were radically changed and higher standards were imposed. No Territorial diplomas were granted during Supt. Long's term and many old ones were revoked. A uniform course of study was prepared and adopted for the Territory. The elementary course covered a period of seven years, the advanced course a period of two years for the schools in the large towns, which were making an effort to begin high-school work. This arrangement for including advanced grades still survives in Arizona in 1916. No changes were made in textbooks except by the addition of several books on physiology, to meet the congressional requirements for teaching the evil effects of alcohol and narcotics. During 1885 and 1886, 21 new districts were organized and 31 schoolhouses were built, and there were many more school libraries. But the school term was shortened nearly 20 days. The quality of teachers was very much improved. The number of teachers holding first-grade certificates in 1886 was 61 more than were needed in grammar schools. About half of the primary schools were in charge of scholarly teachers.

The new provisions for revenue were not as successful as had been expected. Some boards of supervisors disregarded the county superintendent's estimate and made the minimum levy; in other cases the superintendents failed to make the estimate or made an erroneous one. To prevent the recurrence of this condition, Supt. Long recommended that the minimum county tax be increased by 10 cents on each $100. However, the money during these years was carefully expended, and instruction was provided for 1,100 additional pupils. Supt. Long visited each county one or more times during each year of his administration.

Administration of Supt. Strauss.-At the close of one term Mr. Long retired, and Charles M. Strauss was appointed superintendent of public instruction in 1877. Mr. Strauss was not a teacher, as all

the former superintendents had been, but he was a man of ability and took interest in his duties.

The new school law of 1887.-A general revision of all the laws was recommended by the governor. The assembly agreed and the governor appointed a commission of the ablest lawyers in the Territory for this work. In the main the school law of 1885 was reenacted with some good and a few objectionable changes. One of the best provisions was for the election of but one of the district trustees each year, and a term of three years, giving some continuity to the board of trustees. All efforts to provide supervision, either by the Territory or by counties, were abandoned. An attempt was made to abolish the office of State superintendent of public instruction, and the compromise by which it was retained, stripped of all office and travel allowance, cut off every possibility of effective supervision. By the provisions of this law ex officio county superintendents were no longer required to visit schools, and their compensation was fixed at $400 per year. A maximum salary for teachers was fixed at $125 per month for those holding first grade and $90 for those holding second grade certificates. The effect of these laws was to give State and county superintendents consideration as clerical officers only.

After the adjournment of the legislature in 1887 the new board of education, none of whom were teachers, proceeded to amend the rules and regulations for the government of the schools, not always for the best. A rule practically abolishing corporal punishment was adopted, and the course of study was dropped from the requirements. Not until 1899 was another prepared.

In July of this year (1887) the first train reached Phoenix over a branch of the Southern Pacific Railroad. This opened up the center of the Territory to settlement at a rate never before possible. The next assembly removed the capital to that place, where it is likely to be permanently located. In 1887 also the first class graduated from the Territorial normal school at Tempe. The school has since made a large place for itself in the educational work of the Territory. It has been liberally supported and its funds have been carefully expended. The standards have been raised, a commodious building erected, and its popularity and usefulness increased.

(E) FIFTH PERIOD-1889 TO STATEHOOD (1912).

From the close of the preceding period to the admission of Arizona as a State the educational system underwent a gradual evolution. The reports of the superintendents in some instances advocated reforms which were in advance of administrative practice in Arizona and many other States. For example, the State superintendent in

his report of 1894-95 recommends the requirement of educational qualifications for county school superintendents and the consolidation of small school districts when feasible. He mentions with regret the inability of school directors to keep accurate accounts, and deplores their general unfitness properly to conduct the duties of their offices. To remedy this and to increase the efficiency of the schools he advocates a more centralized county school system. This was many years in advance of the general agitation for the county unit system which later swept over the country.

State department.-During this period also the offices of State superintendent of public instruction and county superintendent of schools gained in educational opportunity and ability to assume responsibility which, though legally given, had hitherto remained dormant. In this evolution there were frequent backward steps. In 1901 the salary of the State superintendent was raised from $1,200 per year, from which the State superintendent paid office rent, to $1,800, and again in 1907 to $2,000, with office room furnished at the capitol building. The law, however, did not require visits to the public schools in the different counties but "communication by mail" with the county superintendents; no traveling allowance was provided. In September of 1899 a course of study for all the public schools in the State was prepared, and 1,500 copies were distributed among the schools. Mr. Robert L. Long, whose first successful administration as State superintendent has been discussed, again assumed the office and served from 1906 to 1909.

The following gives the names, manner of selection, and terms of the several State superintendents. It will be noted that Mr. Long was superintendent three different times and served altogether 10 years.

The county. In the meantime county-school systems were assuming more definite shape. In March, 1897, the legislature provided for the separation of the office of county superintendent of schools in counties of the first class (those with property valuation of at