Hostname: page-component-cd9895bd7-gvvz8 Total loading time: 0 Render date: 2024-12-27T07:23:40.324Z Has data issue: false hasContentIssue false

From Vacation to Summer School: The Transformation of Summer Education in New York City, 1894–1915

Published online by Cambridge University Press:  24 February 2017

Kenneth M. Gold*
Affiliation:
College of Staten Island/CUNY

Extract

A noted but rarely explored axiom of the history of American education is that public school practices often originate in private sector settings. As David B. Tyack suggested in his influential study The One Best System, “Many of the innovations designed to offer differentiated schooling in the nineteenth century stemmed not so much from career educators as from wealthy philanthropists, merchants, and industrialists.” Certainly the very organizational structure of many urban school systems grew out of a network of private charity schools formed in the early nineteenth century. After the Civil War, new educational features like kindergartens, manual training, and vocational counseling all began as charitable endeavors but soon worked their way into urban public schools. By the century's end, vacation schools offering summer recreation and industrial education to the children of the urban, immigrant poor became yet another philanthropic program to enter the public school domain. What happened to vacation schools in New York City as a consequence of public administration is the focus of this article.

Type
Articles
Copyright
Copyright © 2002 by the History of Education Society 

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

1 Tyack, David B. The One Best System: A History of American Urban Education (Cambridge: Harvard University Press, 1974), 186.Google Scholar

2 Kaestle, Carl F. Pillars of the Republic: Common Schools and American Society, 1780–1860 (New York: Hill and Wang, 1983), 37; Michael Steven Shapiro, Child's Garden: The Kindergarten Movement from Froebel to Dewey (University Park: Pennsylvania State University Press, 1983), 131–50; Tyack, The One Best System, 186.Google Scholar

3 Locke, WilliamReport of the Department of Schools and Institutions on Vacation Schools, 1895,“ (New York: Association for the Improvement of the Condition of the Poor, 1895), 5.Google Scholar

4 Curtis, Henry S.Vacation Schools and Playgrounds,“ Harper's 105 (June 1902): 29.Google Scholar

5 Rhode Island Board of Education and Committee of Public Schools, Annual Report 31 (1875), 190.Google Scholar

6 Gold, Kenneth School's In: The History of Summer Education in American Public Schools (New York: Peter Lang Press, 2002), 146158.Google Scholar

7 Reese, William J. Power and the Promise of School Reform: Grassroots Movements During the Progressive Era (Boston: Routledge & Kegan Paul, 1986), 161.Google Scholar

8 Ibid., 148–63. Reese also used as his case studies four medium sized cities—Milwaukee, Rochester, Kansas City, and Toledo. These municipalities began vacation schools in 1899, 1899, 1901, and 1901 respectively—after public takeover had occurred in New York. That the New York reformers who started vacation schools were elite professionals and businessmen rather than middle class women as in the cities studied by Reese did not significantly alter the aims or constitution of the summer program.Google Scholar

9 Political theorists over the last fifteen years have worked diligently at “bringing the state back in” after pluralist, structural-functionalist, and neo-Marxist frameworks all but reduced the state to a neutral, weak, and/or dependent actor in matters of social policy and politics. See for example Theda Skocpol, “Bringing the State Back In: Strategies of Analysis in Current Research,” in Peter Evans, Dietrich Rueschemeyer, and Skocpol eds. Bringing the State Back In, (Cambridge: Cambridge University Press, 1985), 3–37; Stephen D. Krasner, “Approaches to the State: Alternative Conceptions and Historical Dynamics,” Comparative Politics 16 (1984): 223–46; Fred Block, Revising State Theory: Essays in Politics and Postindustrialism (Philadelphia: Temple University Press, 1987), 3–22; John A. Hall and G. John Ikenberry, The State (Minneapolis: University of Minnesota Press, 1989). For a small but substantive literature on the state and education, see Andy Green, Education, Globalization, and the Nation State (New York: St. Martin's Press, 1997); idem., Education and State Formation: The Rise of Education Systems in England, France, and the U.S.A. (New York: St. Martin's Press, 1990); Richard Rubinson, “Class Formation, Politics, and Institutions: Schooling in the United States,” American Journal of Sociology 92, (November 1986): 519–48; David L. Kirp and Donald N. Jensen, eds., School Days, Rule Days: The Legalization and Regulation of Education. (Philadelphia: Falmer Press, 1986); Robert B. Everhart ed., The Public School Monopoly: A Critical Analysis of Education and the State in American Society, (San Francisco: Pacific Institute for Public Policy Research, 1982); and Lloyd Jorgenson's The State and the Non-Public School, 1825–1925 (Columbia: University of Missouri Press, 1987).Google Scholar

10 Keller, Morton Affairs of State: Public Life in Nineteenth Century America (Cambridge: Belknap Press of Harvard University Press, 1977); Ballard C. Campbell, Representative Democracy: Public Policy and Midwestern Legislatures in the Late Nineteenth Century (Cambridge: Cambridge University Press, 1980); Theda Skocpol, “State Formation and Public Policy in the United States,” American Behavioral Scientist 35 (March/June 1992): 559–84; William R. Brock, Investigation and Responsibility: Public Responsibility in the United States, 1865–1900 (Cambridge: Cambridge University Press, 1984; William E. Nelson, The Roots of American Bureaucracy, 1830–1900, (Cambridge: Harvard University Press, 1982); and Richard F. Bensel, Yankee Leviathan: The Origins of Central State Authority in America, 1859–1877, (Cambridge: Cambridge University Press, 1990.Google Scholar

11 Skowronek, Stephen Building a New American State: The Expansion of National Administrative Capacities, 1877–1920 (Cambridge: Cambridge University Press, 1982).Google Scholar

12 See for example Katz, Michael B. Class, Bureaucracy, and Schools: The Illusion of Educational Change in America (expanded edition) (New York: Praeger Publishers, 1975); Eric Monkkonen, Police in Urban America: 1860–1920 (Cambridge: Cambridge University Press, 1981).Google Scholar

13 Morone, James A. The Democratic Wish: Popular Participation and the Limits of American Government revised ed. (New Haven: Yale University Press, 1998), 1013.Google Scholar

14 These included visiting resorts and institutes or going camping or touring. Stuart A. Blumin, The Emergence of the Middle Class: Social Experience in the American City, 1760–1900, (Cambridge: Cambridge University Press, 1989), 258–97; Cindy S. Aron, Working at Play: A History of Vacations in the United States, (New York: Oxford University Press, 1999).Google Scholar

15 Nasaw, David Children of the City: At Work and At Play, (Garden City, NY: Anchor Press/Doubleday, 1985), 40; Edwin G. Burrows and Mike Wallace, Gotham: A History of New York City to 1898 (New York: Oxford University Press, 1999), 1186.Google Scholar

16 Nasaw, Children of the City, 24; Jeffrey Mirel, “Progressive School Reform in Comparative Perspective,” in Southern Cities, Southern Schools: Public Education in the Urban South, ed. David Plank and Rick Ginsberg (Westport, CT: Greenwood Press, 1990), 160–63; Diane Ravitch, The Great School Wars: New York City, 1805–1973: A History of the Public Schools as Battlefield of Social Change (New York: Basic Books, Inc., 1974), 138–39.Google Scholar

17 Wallace, Burrows and Gotham, 1188–90; Sol Cohen, Progressives and Urban School Reform: The Public Education Association of New York City, 1895–1954, (New York: Teachers College Press, 1964), 15–19; Ravitch, Great School Wars, 134–41.CrossRefGoogle Scholar

18 Cohen, Progressives and Urban School Reform, 2026.Google Scholar

19 See Wallace, Burrows and Gotham, 1191–208, 1219–36; Ravitch, Great School Wars, 134–58.Google Scholar

20 Good Government Club E, Report of the Committee on Schools, November 26, 1894, 3, 9; Good Government Club E, Annual Report of the Trustees for the Year Ending November 26, 1894, 7–8; New York Herald, June 7, 1894; New York Times, June 1, 1894; July 18, 1894; “Recreation Plus Education: Vacation Schools in New York,” Municipal Affairs 2 (September 1898), 434.Google Scholar

21 Among its earliest institutional creations, the AICP set up a juvenile asylum, a children's aid society, workingman's home, public washing and bathing establishments. Martha J. Lamb and Barton Harrison, History of the City of New York: Its Origin, Rise, and Progress, vol. III (New York: A. S. Barnes Company, 1896), 763–64; J.F. Richmond, New York and its Institutions, 1609–1873 (New York: E. B. Treat, 1872), 506; Frank Dekker Watson, The Charity Organization Movement in the United States: A Study in American Philanthropy (New York: Macmillan Company, 1922), 81; Paul Boyer, Urban Masses and Moral Order in America, 1820–1920 (Cambridge: Harvard University Press, 1978), 86–94.Google Scholar

22 Wallace, Burrows and Gotham, 1159–60; Boyer, Urban Masses and Moral Order, 93–94; Association for Improving the Condition of the Poor [hereafter AICP], Forty-Ninth Annual Report, (1892), 10–12; Board of Education of New York, Journal, July 11, 1894, 926.Google Scholar

23 The AICP had to scale down its original hopes for some public funding or even the use of leftover materials. Instead, it agreed to pay for all expenses, including the salaries of teachers and janitors and the maintenance of the buildings. In addition, it allowed the school trustees for each ward to select the teachers and principals for the schools. Moreover, the board repeatedly cautioned the AICP not to let vacation classes get in the way of school repairs. Eventually, a school in one of the wards was not utilized because of upcoming building work. The board did concede on another issue by allowing public school teachers and administrators to work in the vacation schools. Ironically, this grudging permission later became an adamant demand. Board of Education, July 11, 1894, 926–27; New York Times, July 6, 1894; July 18, 1894; July 24, 1894; AICP, Annual Report, (1893–94), 214–16.Google Scholar

24 In 1895 the AICP received about 280 donations ranging from $100 to $600. Its contributors included John D. Rockefeller and Joseph Pulitzer. New York Times, July 13, 1895; July 22, 1896; June 6, 1897; AICP, Annual Report, (1893–94), 217–19; Locke, “Report of the Department of Schools,” 5.Google Scholar

25 New York Times, July 24, 1894; July 13, 1895; June 6, 1897; AICP, In the Dog Days: The Vacation Schools Season 1896, 4; AICP, Annual Report, (1897), 127; Annual Report, (1893–94), 83, 217. Vacation schools also retained large numbers of students throughout the summer. In 1897, New York's vacation schools attracted 6,138 students the first week, and taught 5,132 five weeks later. Department of Education, City of New York, Manhattan and the Bronx. Report on Vacation Schools and Playgrounds, (1898), 8.Google Scholar

26 Selma Cantor Berrol's work on the immigrant's experience in New York City schools uncovered no city wide tabulation of ethnicity by the public school system for the regular schools, let alone the vacation schools. The repository for the board of education archives has no record of any survey ever existing, nor did the AICP publish any data on its vacation schools. Berrol, Immigrants at School: New York City, 1898–1914 (New York: Arno Press, 1978), 95–97.Google Scholar

27 New York Times, July 24, 1894; July 16, 1896; AICP, Annual Report, (1896), 112–13; Annual Report, (1897), 131.CrossRefGoogle Scholar

28 AICP, Annual Report, (1893–94), 83; New York Times, May 14, 1896; July 13, 1897.Google Scholar

29 Ibid., June 20, 1895.Google Scholar

30 Ibid., August 24, 1895.Google Scholar

31 AICP, Annual Report, (1896), 112.Google Scholar

32 Locke, Report of the Department of Schools,“ 3; New York Times, June 6, 1895; AICP, Annual Report, (1893–94), 217; Annual Report, (1895), 83; Annual Report, (1896), 113.Google Scholar

33 Cavallo, Dominick Muscles and Morals: Organized Playgrounds and Urban Reform, 1880–1920. (Philadelphia: University of Pennsylvania Press, 1981), 49–52.Google Scholar

34 Department of Education, Vacation Schools, (1898), 51–53.Google Scholar

35 New York Times, June 20, 1895; AICP, Dog Days, 5; Annual Report, (1893–94), 84.Google Scholar

36 Each school did not provide coursework in every subject area, and the curriculum varied by age and sex. Older boys, for example, worked with wood in carpentry and design, and map drawing, and military drill, while young girls performed simple sewing and singing. AICP, Annual Report, (1893–94), 82; New York Times, July 18, 1894; Locke, “Report of the Department of Schools,” 10–12.Google Scholar

37 AICP, Annual Report, (1896), 84.Google Scholar

38 Locke, Report of the Department of Schools,“ 5; AICP, Annual Report, (1896), 77.Google Scholar

39 New York Times, August 31, 1894; May 25, 1897; Locke, “Report of the Department of Schools,” 4; AICP, Dog Days, 5.Google Scholar

40 AICP, Dog Days, 3; Annual Report, (1895), 83; Department of Education, Vacation Schools (1898), 8.Google Scholar

41 AICP, Annual Report, (1893–94), 82.Google Scholar

42 AICP, Annual Report, (1897), 23; Board of Education, May 19, 1897, 883.Google Scholar

43 Hubbell, Charles President of the Board of Education, facilitated the process. The Board of School Superintendents, following a positive report from its Committee on School Management, recommended to the Board of Education that the city sponsor vacation schools. The latter board, in turn, secured an appropriation of $10,000 for vacation schools in December, 1897, oversaw their design over the next six months, and appointed Seth Stewart as Chairman of the Committee on Vacation Schools and Playgrounds. Department of Education, Vacation Schools (1898), 6–7.Google Scholar

44 New York Times, September 14, 1897; Reese, Power and the Promise of School Reform, 160.Google Scholar

45 New York Times, August 31, 1894; February 29, 1896.Google Scholar

46 AICP, Dog Days, 19–20,28–29.Google Scholar

47 Ravitch, Great School Wars, 142 144, 148, 162–63; Cohen, 25–29, 35–38; William H. Maxwell, A Quarter Century of Public School Development, (New York: American Book Company, 1912), 217; Samuel P. Abelow, Dr. William H. Maxwell: The First Superintendent of Schools of the City of New York (Brooklyn: Scheba Publishing Co, 1934), 63–66; New York Times, May 25, 1897; August 18, 1897.Google Scholar

48 Ravitch, Great School Wars, 122–49.Google Scholar

49 Department of Education, Vacation Schools (1898), 8–10; Ravitch, Great School Wars, 118.Google Scholar

50 New York Times, August 18, 1897; September 14, 1897; June 30, 1898; July 12, 1898; Charles Mulford Robinson, “Vacation Schools,” Educational Review 17 (March 1899): 256.Google Scholar

51 Department of Education, Vacation Schools (1898), 10–11, 20; New York City Department of Education, Second Annual Report (1899–1900), 71; Annual Report (1904–05), 393.Google Scholar

52 Department of Education, Annual Report (1899–1900), 72.Google Scholar

53 Abelow, Dr. William H. Maxwell, 7374, 82.Google Scholar

54 Brubacher, JohnWilliam Maxwell,“ in Dictionary of American Biography, ed. Malone, Dumas, (New York: Charles Scribner's Sons, 1933), 6:445–46; Abelow, Dr. William H. Maxwell 77.Google Scholar

55 Abelow relates that in 1909, Whitney “visited Dr. Maxwell at his office one day and, for some reason, gave him the most severe tongue-lashing he had ever received in his life. Miss Whitney was there with a friend of hers. He turned to the friend and remarked that he had taken a scolding from her that he would not have taken from any one else.” Abelow, Dr. William H. Maxwell, 27, 58, 73, 168; Brooklyn Daily Eagle, January 3, 1910.Google Scholar

56 Children who wanted to work at age 14 needed to demonstrate a legal minimum of days in attendance at school in order to obtain a work certificate. Department of Education, Annual Report (1905–06), 121.Google Scholar

57 Maxwell also lobbied for an academic summer high school, but was unsuccessful until 1911. Department of Education, Annual Report (1907–08), 137, 517; Annual Report (1908–09), 149, 554–57; Annual Report (1909–10), 153–54, 477; Berrol, Immigrants at School, 153–56.Google Scholar

58 Department of Education, Annual Report (1908–09), 149, 554. In 1912, there were 13,000 pupils in 320 elementary continuation classes and 2,400 students in 80 secondary continuation classes. William H. Maxwell, “How to Help the Backward Children,” Missouri School Journal 39 (1912):540.Google Scholar

59 Department of Education, Annual Report (1901–02), 155. In the afternoons of the summer months, the Board opened up schoolyards for supervised play. These summer playgrounds, easier and cheaper to run, began after the vacation schools but immediately surpassed them in the number of sites opened and students served.Google Scholar

60 Ibid., (1898–99), 178.Google Scholar

61 Ibid., (1899–1900), 71–72.Google Scholar

62 Ibid., (1900–01), 57.Google Scholar

63 Ibid., (1901–02), 156–57. One factor that delayed centralization was the imperfect consolidation of New York City's boroughs. After 1898, summer classes in Manhattan and Brooklyn continued to be administered separately. Only in 1902 did Maxwell bring the vacation schools of each borough under one management.Google Scholar

64 Board of Education, April 25, 1906, 705–6.Google Scholar

65 Department of Education, Annual Report (1898–99), 178–79; New York Times, July 18, 1899.Google Scholar

66 Department of Education, Annual Report (1902–03), 177.Google Scholar

67 Ibid., (1901–02), 155–56. In 1899, for example, eight of ten vacation schools opened were located in New York's lower east side, “on account of the density of the population.” Department of Education, Vacation Schools (1900), 22.Google Scholar

68 Department of Education, Annual Report (1898–99), 141. In 1901 vacation schools still predominated the “congested quarters of the east side,” but two new schools served a Bohemian and Hungarian neighborhood in the upper east side. Also, for the first time a school was opened “designed especially to appeal to the colored people in that vicinity (West 40th Street).” New York Times, May 11, 1901.Google Scholar

69 Department of Education, Annual Report (1902–03), 177.Google Scholar

70 Ibid., (1904–05), 506–45.Google Scholar

71 In 1899, the board granted all 248 applications for vacation school licenses; in 1901, it approved 404 of 407. Ibid., (1898–99), 49, 178–79; (1900–01), 43.Google Scholar

72 Ibid., (1900–01), 43; New York Times, July 15, 1900.Google Scholar

73 Department of Education, Vacation Schools (1898), 12, 21. In keeping with the ethos of vacation schools, Jasper desired an even ratio of experienced to inexperienced teachers.Google Scholar

74 In 1902 Maxwell had lamented that “in no other department of our work is the demand for the appointment of teachers not on the ground of special qualifications, but on the ground of special favor, so frequent and so imperious as in these [vacation] schools.” Department of Education, Annual Report (1901–02), 46, 65–66.Google Scholar

75 In 1902, vacation school licenses became slightly more difficult to obtain, as the Board of Examiners granted 446 of 510 applications to teach in vacation schools. Ibid., (1901–1902), 46, 51, 157.Google Scholar

76 In 1904, 66 percent of the applicants received a license. In 1910 the figure was a comparable 63 percent. Ibid., (1902–03), 45, 117, 172; (1903–04), 70; (1909–10), 180.Google Scholar

77 Board of Education, July 8, 1907, 1294–300. The board of education created ten licenses for vacation schools, ranging from substitute kindergarten helper to supervisor.Google Scholar

78 Mirel, Progressive School Reform,“ 160–63; David Angus, “The Origins of Urban Schools in Comparative Perspective” in Plank and Ginsberg (eds.), Southern Cities, Southern Schools, 59–80.Google Scholar

79 New York Times, July 12, 1898.Google Scholar

80 Department of Education, Vacation Schools (1898), 20.Google Scholar

81 Maxwell had collected grade age data in the 1880s while serving as Brooklyn's Superintendent of Schools. In 1904, however, he assigned each grade a normal age, thus highlighting the large numbers of students above the normal grade age. His findings helped direct the attention of superintendents nationwide towards the overage problem. Maxwell, “Backward Children,” 532, 540; Berrol, Immigrants at School, 85–95; Ravitch, Great School Wars, 168; David Angus, Jeffrey Mirel, and Maris A. Vinovskis, ‘Historical Development of Age Stratification in Schooling,’ in Vinovskis, ed. Education, Society, and Economic Opportunity: A Historical Perspective on Persistent Issues (New Haven: Yale University Press, 1995), 171–93.Google Scholar

82 U.S. Commissioner of Education, Annual Report, 1908–1909 (Washington: Government Printing Office, 1910), vol. 1, 241.Google Scholar

83 Board of Education, December 23, 1903, 3364, 3371; New York Times, January 3, 1904.Google Scholar

84 Board of Education, December 23, 1903, 3371; January 14, 1904, 33; January 27, 1904, 166.Google Scholar

85 AICP, “Communication in Behalf of Vacation and Night Schools, Recreation Centers, and Popular Lectures,” January 9, 1905, 3–4.Google Scholar

86 New York Times, January 4, 1904.Google Scholar

87 New York Herald, January 4, 1904.Google Scholar

88 New York Times, January 6, 1904; New York Herald Tribune, January 1, 1904.Google Scholar

89 Berrol, Immigrants at School, 3337.Google Scholar

90 Board of Education, Dec. 23, 1903, 3370; New York Times, January 7, 1904.Google Scholar

91 See the New York Times, August 3, 1902.Google Scholar

92 New York Herald, January 4, 1904; New York Times, March 19, 1905; July 10, 1907.Google Scholar

93 New York Times, March 14, 1909; March 15, 1909; May 25, 1909; Board of Education, February 10, 1909, 237–38.Google Scholar

94 Department of Education, Annual Report (1915–16), 21–22.Google Scholar

95 New York Times, July 24, 1897.Google Scholar

96 Department of Education, Annual Report (1906–07), 520.Google Scholar

97 New York Times, August 9, 1908, pt. 2, p. 7.Google Scholar

98 Brumberg, Stephan F. Going to America, Going to School: The Jewish Immigrant Public School Encounter in Turn of the Century New York City (New York: Praeger Publishers, 1986), 8294.Google Scholar

99 Department of Education, Annual Report (1902–03), 178.Google Scholar

100 Ibid., (1904–05), 393; Annual Report (1906–07), 520.Google Scholar

101 New York Times, July 16, 1905; July 17, 1906.Google Scholar

102 These programs were part of specific settlement houses that remained independent of the New York Public Schools. Other settlement house programs and facilities, such as kindergartens and libraries, were weakened as the public sector began providing these services. Albert J. Kennedy and Kathryn Farra, Social Settlements in New York City: Their Activities, Policies, and Administration, Studies of the Research Bureau of the Welfare Council, no. 2. (New York: Columbia University Press, 1935), 14, 422–45; Harry Kraus, The Settlement House Movement in New York City, 1886–1914 (New York: Arno Press, 1980), 193–95,224–25.Google Scholar

103 Federation for Child Study, The Play School: A Comprehensive Program of Service for the Neglected Child, 1918, 7; Joseph Jablonower, “Summer Play Schools,” Progressive Education 9 (May 1932), 382–83.Google Scholar

104 Cavallo, Muscles and Morals, 23. For the details of and variation in their views on play, see Cavallo, 55–72.Google Scholar

105 Abelow, Dr. William H. Maxwell, 66 166167; Maxwell, Quarter Century, 28–29, 64–65, 371.Google Scholar

106 Tyack, David and Cuban, Larry, Tinkering Toward Utopia: a Century of Public School Reform (Cambridge: Harvard University Press, 1995); Peter Filene, “An Obituary for the ‘Progressive Movement',” American Quarterly 22 (Spring 1970): 20–34; Daniel T. Rodgers, “In Search of Progressivism,” Reviews in American History 10 (December 1982): 113–32; Richard L. McCormick, The Party Period and Public Policy: American Politics from the Age of Jackson to the Progressive Era (Oxford: Oxford University Press, 1986).Google Scholar

107 Maxwell, Quarter Century, 380 383.Google Scholar

108 Reese, Power and the Promise of School Reform, 154–55.Google Scholar

109 Maxwell, Quarter Century, 393.Google Scholar

110 Reese, Power and the Promise of School Reform, 162.Google Scholar

111 Gold, See School's In, 4872.Google Scholar

112 Cavallo, Muscles and Morals, 23.Google Scholar