The first two decades of the twentieth century witnessed efforts in many of America's great cities to provide special classes for mildly retarded children. Many of today's special education issues on such questions as defining programs, selecting children, and preparing teachers were already concerns then. This paper concerns the efforts of Elizabeth Farrell and City Superintendent of Schools William Henry Maxwell to establish ungraded classes in New York City between 1900 and 1920. Their effort was a successful one, but it also included struggles to find and train qualified teachers, correctly identify children to be served, provide ample classroom space—and do all of that in a fair and equitable manner. Teachers and principals frequently wanted to refer for special class assignment students who were troublesome, but not necessarily mentally retarded. By 1920, proponents of special education believed that intelligence testing had finally given educators a fair, objective, and scientific means to determine which children should be admitted to special classes. Of equal interest, however, is that intelligence testing had nothing to do with beginning the special class policy in New York City. Rather, Farrell and Maxwell responded to a social and human need that was apparent to social and political progressives early in the century, and to the appeals for relief from teachers and principals who were frustrated by having children present in their classes whom they could not reach.
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