the learnings of this representative sample of the Nation's youth. At the same time a great many background factors in the schools then attended were also studied. The factor of "teacher salaries" was measured by comparisons of the starting salaries of men teachers and of women, tabulated separately.

The following quotation, from chapter 11, "Conclusions," page 10, identifies the four background factors in high schools that were most closely related to how much the students learned:

"FACTORS THAT SEEM LIKELY TO BE OF PRIME IMPORTANCE IN ACHIEVING SCHOOL OUTCOMES

"The Project Talent data to date indicate that four of the most important treatment factors closely and uniquely associated with school outcomes such as achievement and going to college and staying in school are—

"(a) Teacher salaries,

"(b) Teacher experience,

"(c) Number of books in the school library,

"(d) Per pupil expenditure.

"These four factors remain important even after region, rural-urban status, and such socioeconomic factors as median family income and quality of housing are held constant. It is possible that teacher salary schedule may be a good general indirect index of teacher quality. A school with a salary schedule above average for its teacher recruiting area can have better teachers and hold them easier than a school with lower salaries.

"It should be cautioned that we cannot conclude for sure that these factors are causing the differences in school outcomes. It may be that they are caused by some outside factors which are just being mirrored or reflected by these above measures. Nevertheless, their contribution is important even after as many as 30 of the most important school and community characteristics have been held constant in multiple regression analyses."

John C. Flanagan, director of Project Talent, professor of psychology, University of Pittsburgh, testified on this study in a congressional hearing in Mav 1963, when he made the following observation: 3

"The single factor most closely related to how much the students learned was found to be the beginning salaries paid to the teachers."

SURVEY OF OVERSEA DEPENDENTS SCHOOLS

Each of the four factors reported on by Project Talent as being strongly related to successful school outcomes were commented on by the survey committee in its report. On each item, strong recommendations for improvement in the oversea dependents schools were made in the survey.

TEACHERS' SALARIES

(Excerpt from ch. V, "Personnel," pp. 27, 28)

"1. The committee recommends that steps be taken immediately to implement the intent of Public Law 86-91 with respect to the salaries of teachers. The committee further recommends that, in implementing Public Law 86-91, the salaries for all professional personnel, including provisions for recognizing professional preparation and years of experience, be equal to those in other U.S. school systems of 100,000 pupils and over. An annual review of comparable salaries should be made, and the oversea dependents schools schedule should be adjusted accordingly.

"The committee found that the salary policy, along with supplies and housing, was a major source of dissatisfaction among teachers. The intensity of feeling regarding salaries was greatest among those of longer service. It reached the level of outrage among many of the teachers, who, from 1959-60 through the present, had experienced the frustrating results of the failure to implement the intent of Public Law 86–91, adopted in July 1959 *

"The newly appointed oversea teacher with a bachelor's degree and 2 years of experience is being paid $4,435. This is more than $400 below the average salary

3 Improvement on Education Quality. Hearings before the Special Subcommittee on Labor of the Committee on Education and Labor, House of Representatives, 88th Cong., 1st sess.. on H.R. 6013 and H.R. 6025. Washington, D.C.: U.S. Government Printing Office, 1963, p. 22.

paid in 1961-62 to a third-year B.A. teacher in districts 100,000 and over in population. It is $779 less than the corresponding salary last year in the District of Columbia."

TEACHER EXPERIENCE

(Excerpt from ch. V, "Personnel," pp. 33, 34)

"1. The committee recommends that plans be developed to provide greater continuity of employment in the oversea dependents schools and to give documentary evidence of employment not later than March 1 of each year to teachers whose continued services are desired.

"2. The committee recommends that teachers and administrators should be encouraged to consider employment in the oversea dependents schools as a professional career.

"The time is long past when the oversea dependents schools can be regarded as a temporary program. But to a great extent, they are being staffed by transients.

"In 1962-63, more than one in three of the oversea teachers were new to to oversea dependents schools. And more than half-58 percent-were new to the schools where they were teaching. Less than 5 percent had been in the oversea schools for more than 8 years."

SCHOOL LIBRARIES

(Excerpt from ch. IV, "Educational Program,” p. 17)

"3. The committee recommends the provision of a great variety of materials and activities geared to the needs of the individual pupil.

"The oversea dependents schools are commended on their effort to provide libraries and librarians in both elementary and secondary schools. In a few schools the library resources seemed ample; in a greater number the supply was small and books were in poor condition.

PER PUPIL EXPENDITURE

(Excerpt from ch. VII, "Funding," pp. 55, 56)

"1. The committee recommends that appropriations for the oversea dependents schools be increased to provide financial resources needed to make effective the educational improvements outlined in this report.

"2. The committee recommends that the per pupil limitation be eliminated and the financial requirements for the oversea dependents schools be a separate item in the budget of the Office of the Secretary of Defense.

"The net effect of the per pupil limitation has been to restrict excessively the authority of the services to operate an adequate program of schools for dependents in oversea areas.

"If, most regrettably, the per pupil limitation is continued, it should be a realistic figure which will make it possible to finance an adequate educational program.

"It must be recognized, moreover, that the oversea dependents schools are necessarily more costly to operate than are the large stateside schools. For example, the median large school system (of the 19 having 100,000 pupils or more) reported 149 schools in 1961-62. In contrast, there are 288 oversea dependents schools. Each additional school means additional expense.

"But every small school that the committee saw appeared to be needed, in fairness to pupils. Long transportation routes were provided and schools had been consolidated wherever possible. The added costs of maintaining many small schools with necessarily small classes and increased administrative service are inescapable in the oversea dependents schools. A cost per pupil that is substantially higher than that of other large American school systems is inevitable if a comparable school program is to be provided."

EXHIBIT D. EXCERPT, PUBLIC LAW 86-91, 73 STAT. 214, JULY 17, 1959

REGULATIONS OF SECRETARY OF DEFENSE

SEC. 4. (a) Not later than the ninetieth day following the date of enactment of this Act, the Secretary of Defense shall prescribe and issue regulations to carry out the purposes of this Act. Such regulations shall govern

(1) the establishment of teaching positions;

(2) the fixing of the rates of basic compensation for teaching positions in relation to the rates of basic compensation for similar positions in the United States;

(3) the entitlement of teachers to compensation;

(4) the payment of compensation to teachers;

(5) the appointment of teachers;

(6) the conditions of employment of teachers;

(7) the length of the school year or school years applicable to teaching positions;

(8) the leave system for teachers;

(9) quarters, allowances, and additional compensation for teachers; and (10) such other matters as may be relevant and appropriate to the purposes of this Act.

(b) The regulations prescribed and issued by the Secretary of Defense under subsection (a) of this section shall become effective on such date as the Secretary of Defense shall prescribe but not later than the ninetieth day following the date of issuance of such regulations.

ADMINISTRATION

SEC. 5. (a) The secretary of each military department in the Department of Defense shall conduct the employment and salary practices applicable to teachers and teaching positions in his military department in accordance with this Act, other applicable law, and the regulations prescribed and issued by the Secretary of Defense under section 4 of this Act.

(b) Subject to section 203 of the Classification Act of 1949 (5 U.S.C. 1083), the secretary of each military department

(1) shall determine the applicability of paragraph (32) of section 202 of such Act, as added by section 3 of this Act, to positions and individuals in his military department, and

(2) shall establish the appropriate annual salary rate in accordance with this Act for each such position and individual to which such paragraph (32) is determined to be applicable.

(c) The Secretary of each military department shall fix the rates of basic compensation of teachers and teaching positions in his military department in relation to the rates of basic compensation for similar positions in the United States but no such rate of basic compensation so fixed shall exceed the highest rate of basic compensation for similar positions of a comparable level of duties and responsibilities under the municipal government of the District of Columbia.

(d) The Secretary of each military department may prescribe and issue such regulations as he deems appropriate to carry out his functions under this Act.

EXHIBIT E. DEPARTMENT OF DEFENSE SALARY DETERMINATION PROCEDURES, OVERSEA DEPENDENTS SCHOOL TEACHING POSITIONS, CLASS 112

U.S. Department of Defense, Washington, D.C., August 1960

1. The compensation schedule will be reviewed annually

Comment. It is recognized that many individual school districts review schedules each year and that a majority of the schedules are likely to be changed in any given year. It is recognized that to date the classification act and some other white collar pay plans have not been reviewed annually. It is customary, however, in Government when wage schedules are administratively determined and related to prevailing rates, to provide an annual review. This procedure statement does not mean that the compensation schedule would be

1 These procedures relate to teaching positions as defined in DOD Instruction 1400.13. Reproduced by the Office of Professional Development and Welfare, National Education ssociation, Washington, D.C., Sept. 9, 1960, and September 1961.

adjusted annually to reflect every increase, no matter how small, in the level of rates for teaching positions and this point is discussed later in this paper. 2. Review of the compensation schedule will be based on surveys of teaching position salaries conducted by the military departments, including the use of such authoritative salary data as may be available

Comment.-The military departments will conduct surveys of teachers salaries, extracurricular pay benefits and certain school administrative type positions as are necessary but will make maximum use of available authoritative data. The National Education Association collects and publishes data on salaries paid classroom teachers and school administrators in the United States. These publications are factual and can be used along with other appropriate data in determining oversea dependents school teachers' salaries.

3. Salary data for teaching positions will be obtained and analyzed on a timely basis and the results will be utilized to seek adjustment in the per pupil limitation sufficient to permit warranted increases in the compensation schedule

Comment. It must be recognized that the per pupil limitation established by the Congress determines the maximum amount which can be spent in the operations of the dependents schools. Since salaries comprise a substantial part of operating costs it is expected that in the future the per pupil limitation will have to be increased before salaries can be adjusted. The most appropriate time to start administrative action to obtain an increase in the per pupil limitation is in August of each year, the time at which final budget preparation for the following fiscal year commences. This means that determination as to warranted salary adjustments must be made in July of each year.

Note. By Bureau of the Budget regulations the Department of Defense is not permitted to budget for anticipated increases in wages or salaries based on prevailing rates outside of the Federal Government. Only wage or salary schedules based on wages and salaries actually being paid can be considered. 4. The compensation schedule will be established and adjusted “in relation to the rates of basic compensation for similar positions in the United States but no such rate of basic compensation so fixed shall exceed the highest rate of basic compensation for similar positions of a comparable level of duties and responsibilities under the municipal government of the District of Columbia" Comment 1.-The above term will be applied as follows:

(a) Comparison for the purpose of establishing and adjusting the compensa. tion schedule will be made with rates of compensation in urban school jurisdictions of 100,000 population and over. Data from as large a proportion of the school jurisdictions as possible will be utilized.

(b) The beginning salary step [step (a)] of the compensation schedule will be related to the average (mean) of the entrance rates paid teachers holding a bachelor's degree, by establishing step (a) at this mean amount, rounded to the nearest $5.

(c) The size of the step rate increases will be related to the average (mean) of step rate increases in effect by fixing the step rate increase at the mean amount paid teachers holding a bachelor's degree, rounded to the nearest $5.

Comment 2.-If teacher salaries continue to rise, as expected, then averages taken each year as provided above will show some upward change. This will be true even if only one of a few school districts grant increases. It is not administratively feasible to reflect very small increases. A reasonable figure, therefore, must be established as the minimum adjustment which will be made in any one year in the entrance rate and yearly increments, and only amounts which meet or exceed these minimums will be adopted. There minimum adjustment figures will be a hundred dollars at the first step and $10 for yearly increments. Comment 3.-A point may be reached where consideration will have to be given to a limitation on adjustments where such adjustments would result in those employees paid from the compensation schedule receiving a higher salary than their Classification Act supervisors.

5. When the per pupil limitation is known, final determination as to an appropriate adjustment will be made. Adjustments in the compensation schedule will be made coincident with the beginning of the school year Comment 1.—It is planned that if the per pupil limitation is increased sufficiently to effect adjustments as provided above, such adjustments will be ordered into effect. There may be times however, where the per pupil limitation will

permit only part of the adjustment being made effective. Final determination of the adjustment, therefore, should await decision on the per pupil limitation. Comment 2. From a management standpoint, the start of the school year seems to be the most appropriate time to place adjustments in effect. In passing, however, it should be noted that when adjustments are effected, new teachers will go on duty at a higher salary than had been indicated at the time they were recruited. It is understood that this is no problem, for at the time of recruitment, prospects can be told that the starting salary will not be less than last year's figures and (if adjustments have been proposed) it may be more. Recruiters, of course, can offer a certain figure during those years when adjustments are not being proposed.

EXHIBIT F.-Salary schedules actually paid oversea teachers and annual rates if salary determination procedures had been followed