discipline, improvement, instruction, or training." The number of persons, whether one or many, does not make a place where instruction is imparted any less or more a school, though it has been held that the word implies plurality and consociation. The word "school" is a generic term, and in its broad sense must be held to include all schools or institutions, whether of high or low degree. But it is undoubtedly limited to institutions providing for systematic instruction in useful branches. The word "school," however, has also acquired a more limited meaning in the public mind as applying only to educational institutions of the lower or ordinary grades. So the word "school" as used in constitutions and statutory enactments has been frequently defined by the courts as referring only to the public, common schools generally established throughout the United States, and usually known as the "common schools" of the country. And it has been held that when used in a statute or contract it will not include universities, business colleges or other institutions of higher education, unless there is something clearly to indicate the intent that such institutions should be included. Similarly the word "school children" has been held to be limited to scholars in the lower schools,10 but the word "pupils" is of broader significance and includes scholars in advanced institutions as well. However, in some cases the word "school" in state statutes has been held broad enough to include higher as well as lower institutions of learning.12 The term "public school" is held to mean the primary or common school,18 and the term is not broad enough to include schools of higher grade, such as normal schools.14 But even the words "common school" have been held to include high schools.15 In the broad sense of the word "school" in 2. In re Sanders, 53 Kan. 191, 36 v. Bryan, 51 Wash. 498, 99 Pac. 28, Pac. 348, 23 L.R.A. 603. 3. Note: Ann. Cas. 1912A 374. 4. Note: Ann. Cas. 1912B 1353. 5. State v. Seattle Electric Co., 71 Wash. 213, 128 Pac. 220, 43 L.R.A. (N.S.) 172. Note: Ann. Cas. 1912B 1353. 6. Note: Ann. Cas. 1912B 1355. 7. Pike v. State Board of Land Com'rs, 19 Idaho 268, 113 Pac. 447, Ann. Cas. 1912B 1344 and note; State v. Seattle Electric Co., 71 Wash. 213, 128 Pac. 220, 43 L.R.A.(N.S.) 172 and note. 8. Pike v. State Board of Land Com'rs, 19 Idaho 268, 113 Pac. 447, Ann. Cas. 1912B 1344; Indianapolis Board of School Com'rs v. State, 129 Ind. 14, 28 N. E. 61, 13 L.R.A. 147; Spokane County School Dist. No. 20 20 L.R.A. (N.S.) 1033. 9. Pike v. State Board of Land Com'rs, 19 Idaho 268, 113 Pac. 447, Ann. Cas. 1912B 1344; State v. Seattle Electric Co., 71 Wash. 213, 128 Pac. 220, 43 L.R.A. (N.S.) 172 and note. 10. State v. Seattle Electric Co., 71 Wash. 213, 128 Pac. 220, 43 L.R.A. (N.S.) 172 and note. 11. Note: 43 L.R.A. (N.S.) 172. 12. Note: Ann. Cas. 1912B 1354. 13. Board of Regents v. Painter, 102 Mo. 464, 12 S. W. 938, 10 L.R.A. 493. 14. Board of Regents v. Painter, 102 Mo. 464, 12 S. W. 938, 10 L.R.A. 493. 15. Richards v. Raymond, 92 Ill. 612, 31 Am. Rep. 151. cludes private as well as public institutions of learning.16 The only difference between a public and a private school is the nature of the institution. One is a public institution, organized and maintained as one of the institutions of the state. The other is a private institution, organized and maintained by private individuals or corporations.17 The subject of treatment in this article is limited to educational institutions below the grade of universities and colleges. The institutions of the higher grade are treated separately.18 2. Theory of Education.-At common law the control of parent over his child extended to the child's education, and except where modified by statute or constitution that authority still exists; 19 and corresponding to the right of control it was the duty of a parent at common law to give to his children an education suitable to their station in life though there was no power to enforce it.20 The parent's common law rights and duties in this regard, however, have been very generally supplemented by constitutional and statutory provisions,1 and it is now recognized that education is one of the functions of government; and the public school system is now a department of the government. The primary purpose of the maintenance of the common school system is the promotion of the general intelligence of the people constituting the body politic, and thereby to increase the usefulness and efficiency of the citizens, on which the government of society depends. It has been said that the state is interested to have all the children educated in order that they may become good citizens.5 2 16. Note: Ann. Cas. 1912B 1254. 17. State v. Counort, 69 Wash. 361, 124 Pac. 910, 41 L.R.A. (N.S.) 95. 18. See UNIVERSITIES AND COLLEGES. 19. Garvin County School Board Dist. No. 18 v. Thompson, 24 Okla. 1, 103 Pac. 578, 138 A. S. R. 861, 19 Ann. Cas. 1188, 24 L.R.A. (N.S.) 221. 20. Board of Education v. Purse, 101 Ga. 422, 28 S. E. 896, 65 A. S. R. 312, 41 L.R.A. 593. 1. Garvin County School Board Dist. No. 18 v. Thompson, 24 Okla. 1, 103 Pac. 578, 138 A. S. R. 861, 19 Ann. Cas. 1188, 24 L.R.A. (N.S.) 221; State v. Counort, 69 Wash. 361, 124 Pac. 910, 41 L.R.A.(N.S.) 95. 2. State v. Freeman, 61 Kan. 90, 47 L. R. A. 67; Herold v. Parish Board of School Directors, 136 La. 1034, 68 So. 116, Ann. Cas. 1916A 806, L.R.A. 1915D 941; Donahoe v. Richards, 38 Me. 379, 61 Am. Dec. 256; Curryer v. Merrill, 25 Minn. 1, 33 Am. Rep. 450; Leeper v. State, 103 Tenn. 500, 53 S. W. 962, 48 L.R.A. 167; Ferriter v. Tyler, 48 Vt. 444, 21 Am. Rep. 133. Note: 76 Am. Dec. 165. 3. Bissell v. Davison, 65 Conn. 183, 32 Atl. 348, 29 L.R.A. 251; State v. Freeman, 61 Kan. 90, 58 Pac. 959, 47 L.R.A. 67;. Herold v. Parish Board of School Directors, 136 La. 1034, 68 So. 116, Ann. Cas. 1916A 806, L.R.A. 1915D 941; State v. Jackson, 71 N. H. 552, 53 Atl. 1021, 60 L.R.A. 739; Leeper v. State, 103 Tenn. 500, 53 S. W. 962, 48 L.R.A. 167; Ransom v. Rutherford County, 123 Tenn. 1, 130 S. W. 1057, Ann. Cas. 1912B 1356. Note: 76 Am. Dec. 165. 4. Bissell v. Davison, 65 Conn. 183, 32 Atl. 348, 29 L.R.A. 251; Fogg v. Board of Education, 76 N. H. 296, 82 Atl. 173, Ann. Cas. 1912C 758, 37 L.R.A. (N.S.) 1110; Ransom v. Rutherford County, 123 Tenn. 1, 130 S. W. 1057, Ann. Cas. 1912B 1356. 5. Bissell v. Davison, 65 Conn. 183, For experience has demonstrated that it costs the public more to support one ignorant or vicious person than to educate many children, and on the simple ground of economy, the state cannot afford to permit any child to grow up without being sent to school. The common school, however humble its surroundings or deficient its curriculum, is the most valuable public institution in the state. 3. Source of Control.-Very generally the legislature is required by constitutional provisions to provide a school system whereby all children may receive an education. These constitutional provisions vary somewhat, but they commonly make it the duty of the legislature to provide by law for a general and uniform system of common schools, where tuition shall be without charge and equally open to all. Such provisions, of course, have no application to institutions 32 Atl. 348, 29 L.R.A. 251; Herold v. Parish Board of School Directors, 136 La. 1034, 68 So. 116, Ann. Cas. 1916A 806, L.R.A. 1915D 941; Curryer v. Merrill, 25 Minn. 1, 33 Am. Rep. 450; State v. Jackson, 71 N. H. 552, 53 Atl. 1021, 60 L.R.A. 739; Fogg v. Board of Education, 76 N. H. 296, 82 Atl. 173, Ann. Cas. 1912C 758, 37 L.R.A. (N.S.) 1110; Ferriter v. Tyler, 48 Vt. 444, 21 Am. Rep. 133. Notes: 76 Am. Dec. 165; 22 L.R.A. (N.S.) 169; 36 L.R.A. (N.S.) 341. 6. Note: 36 L.R.A. (N.S.) 341. 7. Williams Stanton Common School Dist., 173 Ky. 708, 191 S. W. 507, L.R.A.1917D 453. V. No. 83, 122 Minn. 254, 142 N. W. 325, 47 L.R.A. (N.S.) 200; Lekew v. Brummell, 103 Mo. 546, 15 S. W. 765, 23 A. S. R. 895, 11 L.R.A. 828; State v. Jackson, 71 N. H. 552, 53 Atl. 1021, 60 L.R.A. 739; People v. Fitch, 154 N. Y. 14, 47 N. E. 983, 38 L.R.A. 591; Atchison T., etc., R. Co. v. State, 28 Okla. 94, 113 Pac. 921, 40 L.R.A. (N.S.) 1; Harris v. Burr, 32 Ore. 348, 52 Pac. 17, 39 L.R.A. 768; Minsinger v. Rau, 236 Pa. St. 327, 84 Atl. 902, Ann. Cas. 1913E 1324; Ransom v. Rutherford County, 123 Tenn. 1, 130 S. W. 1057, Ann. Cas. 1912B 1356; Cross v. Fisher, 132 Tenn. 31, 177 S. W. 43, Ann. Cas. 1916E 1092. 8. Board of Improvement v. Little 9. In re Kindergarten Schools, 18 Rock School Dist., 56 Ark. 354, 19 S. Colo. 234, 32 Pac. 422, 19 L.R.A. 469; W. 969, 35 A. S. R. 108, 16 L.R.A. Richards v. Raymond, 92 Ill. 612, 34 418; In re Kindergarten Schools, 18 Am. Rep. 151; Cory v. Carter, 48 Ind. Colo. 234, 32 Pac. 422, 19 L.R.A. 469; 327, 17 Am. Rep. 738; Chambers v. Richards v. Raymond, 92 Ill. 612, 34 State, 127 Ind. 365, 26 N. E. 893, 11 Am. Rep. 151; People v. Board of Ed- L.R.A. 613; Freel v. Crawfordsville ucation, 234 Ill. 422, 84 N. E. 1046, 14 School City, 142 Ind. 27, 41 N. E. 312, Ann. Cas. 943, 17 L.R.A.(N.S.) 709; 37 L.R.A. 301; Smith v. Simmons, 129 Cory v. Carter, 48 Ind. 327, 17 Am. Ky. 93, 110 S. W. 336, 130 A. S. R. Rep. 738; Chambers v. State, 127 Ind. 426; Associated Schools, etc. v. Ren365, 26 N. E. 893, 11 L.R.A. 613; Freel ville County School Dist. No. 83, 122 v. Crawfordsville School City, 142 Ind. Minn. 254, 142 N. W. 325, 47 L.R.A. 27, 41 N. E. 312, 37 L.R.A. 301; State (N.S.) 200; Lehew v. Brummell, 103 v. Freeman, 61 Kan. 90, 58 Pac. 959, Mo. 546, 15 S. W. 765, 23 A. S. R. 47 L.R.A. 67; Smith v. Simons, 129 895, 11 L.R.A. 828; People v. Fitch, Ky. 93, 110 S. W. 336, 130 A. S. R. 154 N. Y. 14, 47 N. E. 986, 38 L.R.A. 426; Donahoe v. Richards, 38 Me. 379, 591; Cross v. Fisher, 132 Tenn. 31, 61 Am. Dec. 256; Associated Schools, 177 S. W. 43, Ann. Cas. 1916E 1092. etc. v. Renville County School Dist. wholly or partly under private control.10 Under these provisions, or indeed even in their absence, the establishment and regulation of public schools rest primarily and completely with the legislative department, and all school authorities are created by and are subordinate to the legislative will. The legislature has full power to compel local organizations of the state to maintain schools in their respective territories, 18 even without the consent of those who will be taxed therefor. The legislature may not only determine what schools shall be maintained in school districts, but may provide that if such schools are not maintained, residents of the district shall attend the schools of a neighboring district, and the expense of such attendance be borne by the district of their residence.15 The power of the legislature to impose a system of public school education on local communities is not limited to the common branches. 16 The legis 10. People v. Fitch, 154 N. Y. 14, 47 N. E. 983, 38 L.R.A. 591. S. W. 798, 121 A. S. R. 1002; Ransom v. Rutherford County, 123 Tenn. 1, 130 S. W. 1057, Ann. Cas. 1912B 1356; Cross v. Fisher, 132 Tenn. 31, 177 S. W. 43, Ann. Cas. 1916E 1092. 11. Board of Improvement v. Little Rock School Dist., 56 Ark. 354, 19 S. W. 969, 35 A. S. R. 108, 16 L.R.A. 418; In re Kindergarten Schools, 18 12. Board of Improvement v. Little Colo. 234, 32 Pac. 422, 19 L.R.A. Rock School Dist., 56 Ark. 354, 19 S. 469; State v. Hine, 59 Conn. 50, W. 969, 35 A. S. R. 108, 16 L.R.A. 21 Atl. 1024, 10 L.R.A. 83; Bissell 418; State v. Hine, 59 Conn. 50, 21 v. Davison, 65 Conn. 183, 32 Atl. 348, Atl. 1024, 10 L.R.A. 83; State v. Ha29 L.R.A. 251; Richards v. Raymond, worth, 122 Ind. 462, 23 N. E. 946, 92 Ill. 612, 34 Am. Rep. 151; State v. 7 L.R.A. 240; Chambers v. State, Haworth, 122 Ind. 462, 23 N. E. 946, 127 Ind. 365, 26 N. E. 893, 11 L.R.A. 7 L.R.A. 240; Chambers v. State, 127 613; Stone v. Fritts, 169 Ind. 361, 82 Ind. 365, 26 N. E. 893, 11 L.R.A. 613; N. E. 792, 14 Ann. Cas. 295, 15 L.R.A. Freel v. Crawfordsville School City, (N.S.) 1147; State v. Freeman, 61 142 Ind. 27, 41 N. E. 312, 37 L.R.A. Kan. 90, 58 Pac. 959, 47 L.R.A. 67; 301; Stone v. Fritts, 169 Ind. 361, 82 Associated Schools, etc. v. Renville N. E. 792, 14 Ann. Cas. 295, 15 L.R.A. County School Dist. No. 83, 122 Minn. (N.S.) 1147; State v. Freeman, 61 254, 142 N. W. 325, 47 L.R.A. (N.S.) Kan. 90, 58 Pac. 959, 47 L.R.A. 67; 200; Edmondson v. Board of EducaMatthews v. Board of Education, 127 Mich. 530, 86 N. W. 1036, 54 L.R.A. 736; Curryer v. Merrill, 25 Minn. 1, 33 Am. Rep. 450; Associated Schools, etc. v. Renville County School Dist., 122 Minn. 254, 142 Ñ. W. 325, 47 L.R.A. (N.S.) 200; State v. Jackson, 71 N. H. 552, 53 Atl. 1021, 60 L.R.A. 739: Riccio v. Hoboken, 69 N. J. L. 649, 55 Atl. 1109, 63 L.R.A. 485: Harris v. Burr, 32 Ore. 318, 39 L.R.A. 768; Leeper v. State, 103 Tenn. 500, 53 S. W. 962, 48 L.R.A. 167; Edmondson v. Board of Education, 108 Tenn. 557, 69 S. W. 274, 58 L.R.A. 170; Malone v. Williams, 118 Tenn. 390, 103 tion, 108 Tenn. 557, 69 S. W. 274, 58 L.R.A. 170; Honaker v. Board of Education, 42 W. Va. 170, 24 S. E. 544, 57 A. S. R. 847, 32 L.R.A. 413. 13. State v. Freeman, 61 Kan. 90, 58 Pac. 959, 47 L.R.A. 67. 14. State v. Freeman, 61 Kan. 90, 58 Pac. 959, 47 L.R.A. 67. 15. Associated Schools, etc. v. Renville County School Dist. No. 83, 122 Minn. 254, 142 N. W. 325, 47 L.R.A. (N.S.) 200. 16. Associated Schools, etc. v. Renville County School Dist. No. 83, 122 Minn. 254, 142 N. W. 325, 47 L.R.A. (N.S.) 200; Ransom v. Rutherford lature may act in any manner not expressly prohibited by the con stitution. So it has been held that a constitutional mandate for the existence of schools of a certain character is not exclusive, and does not preclude the legislature from also establishing schools of another character, neither expressly authorized nor forbidden by the constitution. 18 4. Uniformity.-The state constitutions or statutes usually provide for a general and uniform system of common schools. 19 The question has at times arisen as to what constitutes uniformity. Uniform is held to mean that there should be no discrimination as between the different counties or sections. Equal and uniform privileges and rights should control over all the state, but it does not mean that each and every school shall have exactly the same course of study, the same qualification in teac..ers, the same items of expenses in conducting the schools. The local details of the schools and their administration may be committed by general provision to the local authorities. And the fact that different arrangements are made by the local bodies does not constitute lack of uniformity.20 So it is generally held that the legislature may classify school districts,' and enact different provisions for the different classes, provided the classification is based on distinctions that afford a reasonable basis for the classification. It is suflicient if the law passed makes a reasonable County, 123 Tenn. 1, 130 S. W. 1057, 17. In re Kindergarten Schools, 18 Colo. 234, 32 Pac. 422, 19 L.R.A. 469; Richards v. Raymond, 92 Ill. 612, 34 Am. Rep. 151; Curryer v. Merrill, 25 Minn. 1, 33 Am. Rep. 450; Riccio v. Hoboken, 69 N. J. L. 649, 55 Atl. 1109, 63 L.R.A. 485; Harris v. Burr, 32 Ore. 348, 52 Pac. 17, 39 L.R.A. 768; Edmondson v. Board of duration. 108 Tenn. 557, 69 S. W. 274, 58 L.R.A. 170. 18. In re Kindergarten Schools, 18 Colo. 234, 32 Pac. 422, 19 L.R.A. 469; Ransom v. Rutherford County, 123 Tenn. 1, 130 S. W. 1057, Ann. Cas. 1912B 1356 and note. ville School City, 142 Ind. 27, 41 N. E. 312, 37 L.R.A. 301; Smith v. Simmons, 129 Ky. 93, 110 S. W. 336, 130 A. S. R. 426; Associated Schools, etc. v. Renville County School Dist. No. 83, 122 Minn. 254, 142 N. W. 325, 47 L.R.A. (N.S.) 200; Bufkin v. Mitchell, 106 Miss. 253, 63 So. 458, 50 L.R.A. (N.S.) 428; Lelew v. Brummel, 103 Mo. 546, 15 S. W. 765, 23 A. S. R. 895, 11 L.R.A. 828; People v. Fitch, 154 N. Y. 14, 47 N. E. 983, 38 L.R.A. 591; Cross v. Fisher, 132 Tenn. 31, 177 S. W. 43, Ann. Cas. 1916E 1092. 20. Bufkin v. Mitchell, 106 Miss. 253, 63 So. 458, 50 L.R.A. (N.S.) 428. 1. Minsinger v. Rau, 236 Pa. St. 327, 84 Atl. 902, Ann. Cas. 1913E 1324 and note. 2. Riccio v. Hoboken, 69 N. J. L. 649, 55 Atl. 1109, 63 L.R.A. 485; Minsinger v. Rau, 236 Pa. St. 327, 84 Atl. 902, Ann. Cas. 1913E 1324 and note. As to classification for the purpose of legislation, see CONSTITUTION 19. In re Kindergarten Schools, 18 Colo. 234, 32 Pac. 422, 19 L.R.A. 469; Richards v. Raymond, 92 Ill. 612, 34 Am. Rep. 151; Corey v. Carter. 48 Ind. 327, 17 Am. Rep. 739; Chambers v. State, 127 Ind. 365, 26 N. E. 893, AL LAW, vol. 6, p. 373 et seq. 11 L.R.A. 613; Freel v. Crawfords R. C. L. Vol. XXIV.—36. 561 |