xt70rx93bk4d https://exploreuk.uky.edu/dips/xt70rx93bk4d/data/mets.xml Kentucky. Department of Education. Kentucky Kentucky. Department of Education. 1953-08 bulletins English Frankford, Ky. : Dept. of Education This digital resource may be freely searched and displayed in accordance with U. S. copyright laws. Educational Bulletin (Frankfort, Ky.) Education -- Kentucky Educational Bulletin (Frankfort, Ky.), "A Proposed Program of Accounting for Extracurricular Activity Funds in Kentucky Schools", vol. XXI, no. 6, August 1953 text volumes: illustrations 23-28 cm. call numbers 17-ED83 2 and L152 .B35. Educational Bulletin (Frankfort, Ky.), "A Proposed Program of Accounting for Extracurricular Activity Funds in Kentucky Schools", vol. XXI, no. 6, August 1953 1953 1953-08 2022 true xt70rx93bk4d section xt70rx93bk4d Commonwealth of Kentucky EDUCATIONAL BULLETIN —— A PROPOSED PROGRAM OF ACCOUNTING FOR EXTRACURRICULAR ACTIVITY FUNDS IN KENTUCKY SCHOOLS \\ (7111‘ \f’\’ U ‘ * " Published by ND’EPARTM ENT 0 F EDu CAT] 1:: N WENDELL P. BUTLER Superintendent of Public Instruction — ISSUED MONTHLY Entered as second-class matter March 21, 1933, at the post office at Frankfort, Kentucky, under the Act of August 24, 1912. Vol. XXI AUGUST, I953 No. 6 ac ('21 111( th} “'1: yic of th( flbt “‘11 Jim; be to ass ant sue the (mi: pro acm it 3 Del: frat and FOREWORD An increase in the amount of funds raised from extracurricular activities in the schools of the state during: the past few years has caused school administrators some. concern in providing an adequate means of properly supervising the expenditure of such funds. Thousands of dollars are. accumulated in such funds annually throughout the state. Past records show that there have been many cases in the state where individuals have been subject to and, in some instances, have yielded to the temptation of careless use and even 1nisappropriation of these funds. Because of these conditions, the people of many of the communities have made inquiry and expressed much concern about the proper protection of these funds, as well as the effect which they have on individuals of these connnunities who are hand- ling these funds. It is insisted that the funds from student activities be supervised in such manner that the management will serV e to train students in the proper and systematic handling as well as assumption of the obligation for the expenditure of such funds. This bulletin contains a proposed program for accounting: for and proper supervision of the activities of funds received from such pupil activities. H has been prepared by Samuel Alexander of the State Department of Education as partial fulfillment of the, re- quirements for a Master of Arts Degree. After a careful examination of the manuscript containing: the Dl'Oposed program, I am convinced that it should be put into use in accounting for such funds. T have requested permission to publish it as one number of the Educational Bulletin published by the State Department of Education. I recommend it to the school adminis— tl'ators for their use in providing- a means for the proper accounting and supervision of funds raised through extracurricular activities. \Vendell P. Butler Superinteinlent of Public lnstruction 1 If A PROPOSED PROGRAM OF ACCOUNTING F OR EXTRACURRICULAR ACTIVITY FUNDS IN KENTUCKY SCHOOLS (711 By Sanuwl Alexandvr ' l 'l A Thesis Nubm‘itz‘ed in, Par/I'M Fulfillmcnl of H10 1f¢equhwn(ants for ' flw Dog/9'00 of Mush» of Arts in Education Western I'\'cutuuky State College July, 1952 m‘s for _fiJ *. _» Chaptt'r TABLE OF CONTENTS I. TN'I‘R()DUC’I‘I(,)N ................................. 1 II A SURVEY OF EXTRACIIRKICULAR ACTIVITY ACCkH/TN’I‘ING IN 'I‘WENTY—FOUR STATES ....... 8 III TIIE .‘TA'I‘ITS ()I" EXTRACUKRICULAR AC— TI VITY ACCOUX'I‘INC IN KENTUCKY ........... 21 IV A I’h’HI’USEl) PROGRAM 0].“ ACCOUNTING FOR 'EX’I‘RACURIIICUIIAR ACTIVITIES IN THE SCIILMJLS ()Ifi‘ KENTUCKY ....................... 27 APPENDIX ...................................... 51 BIBLIOGRAPHY ................................. Page The writer wishes to express his appreciation to all who have eontrihuted either directly or indirectly toward the completion of this report. Ile wishes to express his especial appreciation to Dr. Lee Francis Jones, under whose. direction this study \‘21S made. It was with his guidance, and counsel this study was made possible. have )n of ) Dr. made. sible. CHAPTER I INTRODUCTION The people of Kentucky ask many questions about the extra- curricular activities carried on in the schools, and they are con- stantly inquiring what becomes of the money raised by these ac— tivities. As long as the people who provide financial support for these activities are concerned and doubtful, there is a need for examination and study of these activities. It is generally believed that properly controlled, adequately supervised, and soundly financed extracurricular activities constitute a desirable part of any educational program, but some people feel that many of these activities are not properly controlled, adequately supervised, or soundly financed. Statement of the Problem The problem of accounting for the funds raised by the various extracurricular activities of a school has been stated by many students of the problem. These writers have dealt principally with the problem of prudent management and control of these funds. The principle of prudence cannot be overlooked in any study of these funds, but closely associated with the principle of priulemze are the principles of adaptability and flexibility. The accounting system used should be flexible enough to meet the needs of the Student body at any one time and should be of such nature that it will be adapable to changes in the school program and in the community. The statement of the problem by Edmonson. Roemer, and Bacon1 will be used as the basis for this study: With the almost phenomenal growth of the extracurricular activities program in the high schools during recent years, there has appeared a great increase in the number of different accounts and funds that have no regular place in the accounting system of the schools. The aggregates of these funds now form totals so large that administrators must find adequate means of super— vising and handling them. \ l. J. B. Edmonson, Joseph Rocmcr, and Francis L. Bacon, The Administration 0f the Modern Secondary School (New York, The Macmillan Company, 1949), pp. 348-349. 573 The problem becomes all the more acute when we realize that, where these activities programs have sprung into existence almost entirely unsupervised, each of the many organizations has its own peculiar method of accounting. In such cases, records and vouchers that exist are difficult of access when wanted; proper audits are generally impossible. Through carelessness or lack of integrity, thousands of dollars of these funds are lost yearly. Students go from such schools trained in lax and ir— responsible methods of handling public funds. Balances of prosperous organizations are spent ill-advisedly, while other ac- tivities go bankrupt. Worst of all, young students in the schools are constantly subjected to, and sometimes yield to the temptation to misappropriate funds. From these and other conditions, there arises a fourfold problem. The finances of the student activities in high school should be so supervised and managed that: 1. Their management will serve to train students in the systematic handling of accounts, in assuming the full responsibility for financial obligations incurred, and in integrity in all money matters. 2. A wise, economical, and honest expenditure of funds will be assured. 3. The principal will be able at any time to inform himself of the financial status of any or all of these activities. 4. Legitimate, feasible, and economical methods of supporting these activities will be provided. Procedures Followed in Study A study of research and literature in the field of school finance revealed certain recommmldations and terms to he used in account— ing for extracurricular activity funds, Correspondence with members of the Departments of Education was used in securing information relative to work that had been done in extracurricular accounting- in other states. Letters were sent to all forty—eight states, but replies were received from only twenty-four 0f the forty-eight. ll'lueh valuable material was re— ceived from those states that responded to the request, for informa— tion. A questionnaire was used to determine the practices employed in accounting for extracurricular activity funds in the high schools of the State of Kentucky. ’l‘hese questionnaires were sent to the various high schools. An attempt was made to devise a questionnaire that could be answered with little difficulty if adequate systems of accounting 574 di th 50] thl pu De all pr} the is 1 fun pro rec< mei her: par rais Defi dize ance ions 3rds ted; ness lost of ac— ools tion iere ities iatic for mey lbe iself ting nice. unt- tion )een vere )nly re- -ma- pyed ools the lbe ting were in use. Apparently, however, the questionnaire was very difficult or the accounting systems inadequate. The. responses to the questionnaire were disappointing in that they indicated a lack of information or a lack of concern. It the school people are not more fully informed than the answers to the questionnaire. showed, it is not surprising that the gene all public would view these funds with suspicion. Delimitations of Study A survey of the research and literature available reveals that all funds involved in school accounting can be divided into two principal groups; namely: . 1. Funds raised by taxation or charges made. by a board of cducationw—speeifieally board of education funds. ‘2. Funds raised in the name of a school or schools but not by taxation or charges of a. board of education. This study deals with problems related to funds other than those 'aised by taxation or charges of the board of. education, and is limited to those funds commonly called "extracurricular activity funds." A plan of accounting will be devised which will, if followed. provide a record of receipts from the source to the audit, and a record of disbursements from initiation of purchase. to final pay- ment. The aecounting plan further proposes to provide the mem— bers of each extracurricular activity group an opportunity to participate fully in the management of accounting for the funds raised by the activity group. Definition of Terms In an unpublished study, Garrison and Kash‘z state: In the immediate administration of the high school, the prin- cipal encounters many problems of financial accounting. These problems may be divided into three groups; namely: 1. Those associated with accounting for funds of the student body, student organizations, activities, clubs, etc. 2. Those associated with student exchanges, cafeterias, book stores, athletic funds, etc. 3. Those associated with petty cash funds; for example, library fines, postage funds, etc. ‘3. Earl R. Garrison and Shelby Kash, A Proposed Plan of Accounting for Ac ’lirtfy Funds in (he High Schools of Kentucky, Unpublished Study. University _ of Kentucky, College of Education, 1950. 575 In a study of accounting for school funds, Engelhardt and Engelliardti‘ suggest the following definition of terms: There are certain services maintained by schools, the cost of which the pupil shares. They may be rendered in the same manner as services connected with other activities of the school, but their finances are handled in the individual school building rather than in the central office. They are usually called internal services, and are differentiated from extracurricular activities in that they are . not intended to contribute through pupil participation to the educational work of the school. The cafeteria, lunchroom, and book store are the usual activities that come within this category . . . The internal services should be differentiated from the many so- called extracurricular activities which are associated with the life of every modern junior and senior high school. The Bulletin of the University of the State of New York1 accepts and defines the same classification of funds given by Engel» hardt and Engelhardt5 except that the term extraclassroom is used instead of extracnrrienlar. For this study the following defi- nitions shall be accepted: Co—curricular, extracurricular, and extraclassroom shall be considered as synonyms. They shall mean any activity of a school whose funds are raised other than by taxation or through charges made by the board of education. Examples of these funds are: athletic funds, club funds, class funds, etc. Internal school funds shall be defined as follows: Any funds raised by taxation or through charges made by the board of education. There may be other school funds which are clearly board of education funds, but they will be differentiated from extracurricular activity funds on the basis of the purpose and source of such funds. Examples of internal school funds are: gifts and donations made specifically to boards of education, fees, rent of school property, tuition, revolving funds, and any other funds for which the board assumes direct responsibility. Source of Data. The information for this study was obtained from seven principal sources: 1. inspection of extracurricular activity accounting in the high schools of Kentucky. and in the auditing: of various extracurricular activity accounts. 3. N. L. Engellmrdt and Fred l‘lngellmrdt, Public School Business Adniinistrnliml (New York, Bureau of Publications, Columbia University, 1927), p. 7977. 4. “The Safeguarding, Accounting and Auditing oi' Extraclassroom ,Actirit." Funds,” Bulletin No. 12715, I'niversity of the State of New York. September 1, 1944. o. Engelhardt and Engelhardt, 0p. cit, p. 795. 576 and st of inner their than , and I are the and y so- : life ork4 agel- 1n is defi- .l be :hool arges are: funds ‘6. of early from and are: fees, other P Vt’ll the "ions mm» D. tivit." *mlwl' (i. ‘1 A. questionnaire which \‘218 mailed to 4.84 high schools in Kentucky. Correspondence with members of the State, Departments of Education in twenty-four states. An analysis of plans and methods of extracurricular ac- tivity accounting- used in seven states. An examination of the available research and literature relating- to extracurricular accounting. A study of the Kentucky Common School Laws, State Board of Education Regulations, and opinions of the Attorney General. An examination of several commercial. school activity ac- counting forms. CHAPTER II A SURVEY OF EXTRACURRICULAR ACTIVITY ACCOUNTING IN TWENTY-FOUR STATES 011 May 6, 1952, a letter was written to the Chief State School Officer in each of the forty—eight states requesting information relative to methods and procedures used in accounting for extra- curricular activity funds. Replies were received from twenty-four of the forty-eight inquiries. Seven of the states reported that they do not have any state plan of accounting for extracurricular activity funds. The states that reported no state plan for extracurricular activity accounting were: Georgia, Massachusetts, Michigan, Mississippi, Nebraska. South Carolina, and Virginia. The following excerpt from a letter from a Consultant in Finance and Child Accounting of the Depart- ment ol" l’ulilic lnstruction of the State of Michigan is typical of the letters received from the states which had no state plan of accounting for extraem-ricular activity funds: We do not have a state extracurricular accounting system. We recognize that this matter is of utmost importance to school districts, but as yet, have not had the opportunity to study the problem and set up state regulations. . . . Would be pleased to have a copy of your study when it is completed. The remaining seventeen states that responded to the inquiry relative to state plans for accounting for extracurricular activity funds can he grouped under the following headings: (1) States having statutory provisions for extraeurrieular activity accounting: (2) States having State loard of Education regulations governing extracurricula ‘ accounting; (3) States which have prepared manuals and guides with recommended accounting methods and practices for extracurricular activity accounting. Statutory Provisions for Extracurricular Accounting The extracurriclilar accounting regulations are governed by statutory provisions in North Carolina, Arizona, Pennsylvania, California, New Jersey, \Vest Virginia, and Indiana. In order that a more complete record may be presented, the statutory provisions ‘\ governing extractu'ricular accounting in North Carolina, Pennsyl- vania, and \Vest Virginia will be incorporated in this study. Only the specific points of interest in the statutory provisions of the [G l states of Arizona, California, New Jersey, and Indiana will be given. ‘ North Carolina Section 115-165 (3) Special Funds of Individual Schools.‘ l The county board of education of all county administrative units ’01 I and the board of trustees of all city administrative units shall, by 011 proper resolution duly recorded, appoint a treasurer of all special ra- l school funds for each school in the respective administrative unit. ‘111‘ ‘ In all individual schools, a complete record shall be kept by the i treasurer so appointed and reports made of all money received , and from what source and all money disbursed and for what pur— rte t pose; provided, however, that nothing in this subsection (3) shall tes ‘ prevent the handling of these special school funds under subsection 110 (1) and subsection (2) of this section. (Comment: Subsections D l 1 and 2 provided for a treasurer of the General School Funds who (a, I may also be required to handle the special activity funds.) The ter treasurer of all special funds so appointed and the principal of rt- , each school shall make a monthly report, and such other reports of as may be required, to the superintendent of the administrative of unit wherein such individual school is located, showing the status , of each special school fund, upon forms to be supplied for that purpose. ' , W9 ‘ Section 115-366 Bonds. The board of education in each 001 county administrative unit and the trustees of each city admin- the istrative unit shall cause all persons authorized to draw or approve school checks or Vouchers drawn on school funds, whether county, lit district, or special, and all persons who as employees of such administrative unit are authorized or permitted to receive any . school funds from whatever source, and all persons responsible 1.1) l for or authorized to handle school property to be bonded for the 1lf-V ‘ faithful discharge of their duties in such amount as in the dis— teS cretion of such governing authorities of said administrative unit 19;; 1 shall deem-sufficient for the protection of said school funds or in}! property With surety by some surety company authorized to do als ’ business in the State of North Carolina. The amount deemed nec- ' essary to cover the cost of such surety bond shall be included as for ‘ an item in the general school budget of such school administrative unit and shall be paid from funds provided therefor; but nothing in this section shall prevent the governing authorities of the respective administrative units from prorating the cost of such by bonds between the funds sought to be protected. lia: ‘ 1. ”Public School Laws of North Carolina,” Bulletin, Department of Education, hat ‘ Raleigh, 1951 (1949 Cumulative Supplement to General Statutes of North Carolina, 1943). 579 Section 115—368 (3) How School Funds Shall Be Paid Out. Such funds shall be paid out only on checks signed by the prin- cipal of the school and the treasurer who has been selected by the respective boards; provided, this procedure for depositing and disbursing funds is not required for schools handling less than three hundred dollars ($300.00), and if in the judgment of the board of the respective administrative units such procedure should not be required. However, in all schools a complete record shall be kept by the treasurer and reports made of all money received and disbursed by him in handling funds of the school; provided further, that nothing in this subsection (3) shall prevent the dis- bursing of all the special funds upon the signatures required under the provisions of subsections 1 and 2 of this section. Section 115—369 (3) Audit of School Funds. The county board of education and the board of trustees of city administrative units, respectively, shall cause to be made, at the time the audit of the county or city funds is made, an audit of the special school funds of each school in the respective administrative units. Section 115-369 (4) Filing and Publication of Audits. Copies of the audit of the several county and city administrative units and special funds of individual school required by this section shall be filed with the chairman and secretary of the governing body of the unit receiving and disbursing such funds, and with the county auditor and the clerk of the superior court of the county in which such unit is located. The county board of education in a county administrative unit and the board of trustees in a city administrative unit shall include in the school budget of the respective administrative units funds for the payment of the costs of the audits of county, city, district, and special funds of individual schools as required under subsections 2 and 3 of this section; provided, that nothing in this section shall prevent the respective board from prorating the cost of auditing of special funds to the special funds of each school. lt can be seen from the preceding statutory provisions of the State of North Carolina that much thought has been given to adequate safeguards for extracurricular activity funds and internal sehool funds in the state. These statutes accurately set forth pro- visions for prudential management of these funds. Yet no mention is made of the benefits that pupils may receive from the handling of these funds. Consequently, the principles of adaptability and flexibility are completely ignored. If the pupils who participate in the raising of these funds benefit from the funds, it will be by the use of the. materials and services purchased by the money. N0 provision is made for the handling of the funds by the pupils and any experience they gain therefrom will be purely coincidental. 580 m , Pennsylvania )y ‘ Section 511. School Athletics, Publications, and Organizations ‘-' 1d (a) The board of school directors in every school district in shall prescribe, adopt, and enforce such reasonable rules and regu— Je i lations as it may deem proper, regarding (l) the management, 1d ' supervision, control, or prohibition of exercises, athletics, or games ill I of any kind, school pulications, debating, forensic, dramatic, musi- Ed ' cal, and other activities related to the school program, including Ed i raising and disbursing funds for any or all of such purposes and i5“ [ for scholarships, and (2) the organization, management, super— er vision, control, financing, or prohibition of organizations, clubs, i societies and groups of the members of any class or school, and rd i may provide for the suspension, dismissal, or other reasonable ts, penalty in the case of any appointee, professional or other em— he i ploye, or pupil who violates any of such rules or regulations. .ds (b) Any school or any class activity or organization thereof, | with the approval of the board, may affiliate with any local, dis— ies , trict, regional, State, or national organization whose purposes and its . activities are appropriate to and related to the school program. all i (c) The board of school directors may (1) permit the use dy of school property, real or personal, for the purpose of conducting ;he i any activity related to the school program, or by any school or ity class organizations, club, society, or groups, (2) authorize any i school employe or employes to manage, supervise, and control the . 1 development and conduct of any of such activities, (3) employ or mt . assign any school employe to serve in any capacity in connection ,all i with any of such activities. Hts (d) Notwithstanding the use of school property or personnel, .ty, it shall be lawful for any school or any class or any organization, 19.1“ i club, society, or group thereof, to raise, expend, or hold funds, iii: including balances carried over from year to year, in its own name and under its own management, under the supervision of the )01' principal or other professional employe of the school district desig- the hated by the board. Such funds shall not be the funds of the to ' school district but shall remain the property of the respective school, class, organization, club, society, or group. The treasurer “31 1 or custodian of such funds shall furnish to the school district a ‘1'0' proper bond, in such amount and with surety or sureties as the 1011 { board shall approve, conditioned upon the faithful performance ing . of his duties as treasurer or custodian. The premium of such bond, ind if any, shall be paid from the funds or fund secured thereby or ate from the funds of the school district, at the discretion of the board. The treasurer or custodian shall be required to maintain an ac— by ‘ counting system approved by the board, shall deposit the funds N0 in a depository approved by the board, shall submit a financial nid ‘ statement to the board quarterly or oftener, at the discretion of i '3. “School Imws of Pennsylvania,” 1949, Bulletin 2, Harrisburg, Section 511, pp. 64-65. 581 the board, and shall submit the accounts to be audited in like manner as the accounts of the school district. (e) All purchases of materials or supplies made by any organization, club, society, or group, or by any school or class, in excess of three hundred dollars, shall be made upon solicitation of quotations or bids from three or more responsible manufacturers of or dealers in such materials or supplies. All such purchases shall be made from the lowest responsible bidder on the basis of price, quality, and service. West Virginia The Legislature of West Virginia passed an act relating to accounting and auditing of school funds on March 5, 1951. The bill to become effective ninety days from passage is entitled: “Authority of County Board to Require Keeping of Records of Receipts and Disbursements of School Funds and to Audit Such Records.”3 Article 5, Section 13, Subsection 1. The boards, subject to the provisions of this Chapter and the rules and regulations of the State Board, shall have authority: (1) To control and manage all of the schools and school in— terests of the county including the authority to require that records be kept of all receipts and disbursements of all funds collected or received by any principal, teacher, student, or other person in connection with any program, activity or other endeavor of any nature operated or carried on by or in the name of the school, or any organization or body directly concerned with the school, and the authority to audit such records. The statutes of the State of Arizona provide for the administra— tion of student: activities money and other receipts of the common schools, high schools. and junior colleges. These statutes define student activities money as money which is raised with the ap- proval of the board of trustees or hoard of education by the efforts of students in pursuance of or in connection with the activities of student organizations, school book stores, cluhs, athletic activities, school plays, and other student entertainment. A board of educa- tion or board of trustees ot" a, school district is permitted hy the statutes to establish a revolving: t'und .t'or the purpose of meeting the necessary current expenses connected with student activities. The amount of money provided in the revolving fund shall. at the end of each fiscal year he returned to the credit of the school district. 3. ”School Legislation,” Bulletin No. 12, West Virginia State Department of Education, Charleston, August, 1951, p. 20. 582 l't‘i thi dis to er of \\'< lat res act of sch Edi it s wit dist of t of I Del: pro‘ dist like any lass, tion rers hall rice, ;‘ to The led: ; of uch tto iof in— that .nds :her ,vor the the tra- 11011 tin e ap- n'ts the ing ies. the 00] ‘of l A letter from the Chief of the Bureau of Educational Research of the State of California gives the following provisions of the, Education Code of California: 16143. The governing board of any school district shall pro— vide for the supervision and auditing of all funds raised by any student body or student organization using the name of the school. The cost of supervision and auditing may constitute a proper charge against the funds of the district. 16144. The funds of any student body organization shall be deposited in a bank approved by the governing board of the school district and shall be expended subject to such procedure as may be established by the student body organizations subject to the approval of an employee or official of the school district designated by the governing board. The Legislature of New Jersey in 1.05]. passed a law which requires an annual audit of all school districts by a Certified Public Accountant or Registered Municipal. Accountant. The scope of the audit includes all extracurricular activity funds of the school district. The statutory provisions of the State, of Indiana are similar to those which have been discussed in comments pertaining to extracurrieular aecounting in Arizona, and California. The principal thought gathered from the statutory provisions of North Carolina, Arizona, Pennsylvania, California, New Jersey, West Virginia, and Indiana is the acceptance, by the various legis- latures of the fact that the local school administrative units are responsible for the prudent management. of all extracurrieular activities and internal school funds. The very aeknowledgeinent of this responsibility places these funds in the category of public school funds. In no case do these laws require the State Departments of Education to prepare and provide uniform accounting forms, but it seems that since the State Department of. Education is charged with the responsibility of providing leadership for local school districts and since the local districts are governed by regulations of the State Boards of Education through the State Departments of Education, that the inference might be drawn that the State Departments of Education are charged with the responsibility of providing a uniform system of accounting for the local school district. 583 State Board of Education Regulations Governing Extracurricular Accounting Only one state reported that all extracurricular accounting is governed by regulations of the State Board of Education. In addi- tion to the regulation which is contained herein, the State Board of Education of Florida requires the local School districts to purchase the forms direct from the printer. The ll. & \V. 1"). Drew ('Yonlpany, Jacksonville, Florida. State Board Regulation relating to INTERNAL ACCOUNTING (June 1, 1948) (As authorized by Section 230.43 (7) and Section 236.02 (1) of Florida Statutes, 1941, and amended by Chapter 23726, Laws of Fl