Pastoral Ministry in the Catholic Secondary Schools

Prepared as a guideline document by the Catholic School Chaplains of Ontario, September, 1999.

   1. Introduction

   2. Chaplaincy and the Catholic School Culture

   3. What is Chaplaincy?

   4. Who carries out this ministry?

   5. Pastoral role of the Chaplain

       A.  General Statement

       B.  Responsibilities of the Chaplain

   6. Facilities and Supports provided for the Chaplain

   7. Reporting and Accountability

   8. Qualifications and Experience

   9. Salary and Benefits

 10. Hiring Policy

 11. Evaluation

 

 

1. Introduction

This document has been prepared in response to a perceived need for greater clarity regarding the role of high school Chaplains. The Executive of the Catholic School Chaplains of Ontario (CSCO) has received requests from Chaplains, but also from schools and school boards, for a set of guidelines on writing a role description for Chaplains, on the kinds of qualifications needed, and on such things as working conditions and hiring policies. What follows is based in part on policy statements received from various school boards and on the collective experience and wisdom of a number of high school Chaplains.

This document is a guideline. We are not proposing that it be adopted by school boards in its entirety. However, it is our hope that it will be given serious consideration by schools and school boards as they develop and implement their own policies on school Chaplaincy.

It is our conviction that Chaplaincy programs are not an optional but rather an ESSENTIAL element in our Catholic high schools. The Catholic community should remain committed to providing these programs through their elected Catholic school boards. This commitment to providing pastoral care for the school community is given expression through the types of decisions and actions which are spelled out in this guideline document.

CSCO is not a Chaplains' union. It is not our place to be involved in negotiations or bargaining to do with local working conditions, etc. However, we do see it as our role to advocate for the support and enhancement of Chaplaincy programs in Ontario's Catholic secondary schools.

The provision of a good program of pastoral care or Chaplaincy must begin with prayerful preparation and discernment. It requires people who are faith-filled, theologically educated, and pastorally skilled. It requires just wages and benefits, and a sufficient financial commitment to the program as a whole. It requires space, time, flexibility, freedom, the support of a community, and ample room for the Spirit to move and to inspire. A good Chaplaincy program does not come about by accident nor simply as the fulfillment of a wish. It demands clear decisions and deliberate action.

We offer what follows as a guideline and framework which school boards and their secondary schools can make use of as they develop or update their own Chaplaincy policies. We hope that these suggestions and recommendations will help to enable and nurture a truly creative Christian ministry to the students and staff of our Catholic secondary schools.

 

2. Chaplaincy and the Catholic School Culture

"One of the questions asked as we move to the completion of our Catholic school system is how to preserve and improve 'Catholicity' in the secondary schools."[1]  So wrote the Ontario Catholic Bishops in 1985, when the Ontario Government brought in full funding for the separate schools. The Bishops continue: "One of the most promising needs is certainly the upgrading of chaplaincy work into a full ministry of pastoral service or care that will take the "what" of religious classes and translate it into the "how" of Christian Catholic living within the whole regime of the school and the life of the faculty and students."[2]

Nearly fifteen years later, as we near the end of the twentieth century, the question raised by the Bishops is more pressing than ever. We are facing radical changes in the Ontario educational environment which "strike at the very soul of Catholic secondary schools", says the Catholic curriculum planning document Educating the Soul.[3] These changes are so serious, writes the author, Larry Trafford, that "they threaten the distinctive character and mandate of Catholic education itself."

If teaching and living out Gospel values is central to the special nature of Catholic schools, then there must be "a learning environment and school culture that is visibly religious."[4] Trafford identifies a number of the "visible signs of a Catholic school culture." These include space and time to celebrate the liturgical year, especially the great seasons and feasts; prayer each morning, and at other times; celebration of the Eucharist; religious symbols, decorations, banners, etc.; and "the community's response to life's tragedies such as illness and death."[5] The "moral and spiritual formation" promoted by Catholic education also includes a view of human life in which we are transformed into the persons God intends us to be through our actions of reaching out to others and working to actualize the reign of God. This leads us to involvement in charitable works, volunteering our time to help others, and various works of peace and justice aimed at renewing our social and political structures. Trafford does not speak specifically of "Chaplaincy", but certainly all these aspects of the Catholic school culture would normally be part of a good school Chaplaincy program.

It remains a matter of central importance in our Catholic secondary schools that there be a strong and visible pastoral program of Chaplaincy which "gives special witness of the caring Church in its humaneness, and of the presence and action of God celebrated in the community."[6]

 

3. What is chaplaincy?

"School chaplaincy is a pastoral role carried out in an educational setting in a collaborative manner in order to promote the spiritual and human development of the members of the Catholic school community."

 

Guidelines for School Chaplaincy in Ontario.[7]

School Chaplaincy is a work of pastoral ministry carried out primarily within the school community. It is not simply "youth ministry", since it is directed towards both the staff and the students. This ministry may also extend at times beyond the immediate school community towards family members and friends of those in the school.

Chaplaincy is a ministry of the Catholic Church, and as such it requires a mandate from the diocesan bishop. School Chaplaincy personnel are hired by the school board, and are employees of the board. In the school, they work with the Principal and are accountable to the Bishop. In their work, they are guided by the policies and decisions of the board and the school Administration. However, their fundamental mandate comes from the Church and they are ministers of the Church.

All Christians, through their Baptism, are called to be witnesses to their faith and to minister to others. All members of the Church share in "the saving mission of the Church itself," says the Second Vatican Council. "Through their baptism and confirmation, all are commissioned to that apostolate by the Lord Himself." (Lumen Gentium)[8] They are consecrated into a royal priesthood and a holy people." (Apostolicam Actuositatem.)[9] All Catholic school staff, all teachers and Administrators, have this same call.

But Vatican II also states that beyond the apostolate "which pertains to absolutely every Christian," members of the Church can also be called in various ways to a more direct form of cooperation in the apostolate of the hierarchy. This was the case with certain men and women who assisted Paul the Apostle in the gospel, laboring much in the Lord (cf. Phil. 4:3; Rom. 16:3 ff.). Further, [the laity] have the capacity to be deputed by the hierarchy to exercise certain church functions for a spiritual purpose. (Lumen Gentium)[10]

The Council acknowledges that some lay (non-ordained) members of the church "do all they can to provide sacred services" as necessary in local circumstances, and "many devote themselves entirely to apostolic work." (Lumen Gentium)"[11]

School Chaplains, like all Christians, minister in virtue of their call in baptism and confirmation, but their appointment and mandate as Chaplains represents the assignment to them of a special call to ministry and service, a fuller participation in the apostolate of the Church.


4. Who carries out this ministry?

In The Code of Canon Law, Canon 564 describes a Chaplain as "a priest to whom is entrusted in a stable manner the pastoral care, at least in part, of some community or special group of Christ's faithful." This would appear to restrict the title of "Chaplain" to one who is ordained. However, in practice, the pastoral care of school communities has been largely entrusted to people other than priests. This is in keeping with the vision of the Ontario Bishops, quoted in Section I, when they spoke of "the upgrading of chaplaincy work into a full ministry of pastoral service or care."

Bishop Frederick B. Hemy wrote about this expanded form of Chaplaincy:

Today the role of the chaplain is not reserved exclusively for priests, and 'chaplain' no longer carries the limited meaning of the one who fulfills the duties attached specifically to the chapel, that is, the celebration of the sacraments and presiding at church services. Our school communities are being served by persons, be they clergy, religious, laity, women or men, who have been recognized as having a specific ministry with the faith community of the school to facilitate opportunities to grow in Christ.[12]
 

Bishop Henry encouraged the general use of the title "Chaplain" by those ministering in this way to school communities, and in most parts of Ontario, that is the title used whether the Chaplain is a priest or not. Indeed, the Ontario Conference of Catholic Bishops, in their published guidelines for those doing pastoral ministry in institutions other than schools, have chosen to use the title "Chaplain" in what they call a "generic way". Under the title "Chaplain" the Bishops include:


     those qualified and ecclesiastically endorsed persons who have responsibility for the provision of pastoral care in

     institutions. In the case of Catholics, chaplains may be lay people, women and men religious, deacons or priests. When the

     title chaplain is used in such a broad way, it is important that those receiving pastoral care know whether or not a particular

     chaplain is a priest, since by virtue of priestly ordination he has faculties unique to the priesthood (e.g. celebration of the

     sacraments of the Eucharist, Reconciliation and Anointing of the Sick.)[13]

CSCO is strongly of the opinion that a similar generic use of the title "Chaplain" should continue to be the practice in Ontario's Catholic secondary schools. The task of raising awareness about the complexities of high school Chaplaincy has taken many years and is still ongoing. Lack of understanding of the role and lack of organizational commitment to it has led, in some places, to the serious diminishment of school Chaplaincy programs and to unjust wages and working conditions for school Chaplains. Our concern is that a proliferation of titles might further contribute to this lack of understanding and diminution of the role.

In point of fact, the title "Chaplain" has long been in widespread use to refer to anyone assigned to high school ministry in Ontario, and was included in the name of our organization, the Catholic School Chaplains of Ontario, when it was founded in 1987. In a few places, Catholic school boards chose titles such as "Chaplaincy Team Leader" or "Chaplaincy Team Member" to designate those in pastoral service who are not ordained. However, in practice, these longer titles are inevitably shortened simply to "Chaplain". Other titles have been used in some places, like "Pastoral Care Worker" or "Campus Minister". However, the name "Chaplain" is the one most commonly used and recognized.

Chaplaincy personnel in Ontario Catholic secondary schools are lay women or men, women or men religious, deacons, or priests. While the ordained priest has "faculties unique to the priesthood", as noted earlier, the title "Chaplain" is used throughout this document to refer to all who are appointed to this special form of Church ministry which is school Chaplaincy.

 

5. Pastoral role of the chaplain

    A) General Statement:

The central role of school chaplaincy is to serve the staff and students of the Catholic secondary school. Thus the secondary school lives and grows as a unique Catholic Christian community to which staff and students belong. The Chaplain provides evangelization for the school community and support for the faith life of its members.

By being present and visible, the Chaplain shares in the life of the school and in the joys and the sorrows of its members, providing witness of the caring Church. The Chaplain is available to help those who suffer or who need support in times of crisis in their lives.

Because of the importance of pastoral ministry in the school and the comprehensive range of responsibilities of the Chaplain in
working to carry out that ministry, we strongly RECOMMEND:

1. That each secondary school be provided with a full-time Chaplaincy position, regardless of the size of the school population;

2. That this full-time position be assigned to ONE person as the school Chaplain, rather than having two or more part-time Chaplains;

3. That Catholic secondary schools which have a student population in excess of 1,000 be assigned additional Chaplaincy personnel on a full- or part-time basis to assist the regular full-time Chaplain;

4. That the full-time Chaplain (or one of the full-time Chaplains, if there is more than one) should be designated as Chaplaincy Team Leader to coordinate the school's Chaplaincy Program.

    B) Responsibilities of the Chaplain:

1. Coordination and Leadership:

The Chaplain is responsible for coordinating the school's entire Chaplaincy program. This includes the preparation of an annual
Pastoral Plan and calendar of Chaplaincy events and activities, and seeing that this is correlated with the school events calendar. The Chaplain also coordinates the contributions of others in the school who will be involved in the preparation and presentation of the many Chaplaincy events and activities. For example:

      a) some staff members, whether volunteers or those with assigned Chaplaincy time, including a member of the school 

           Administration
      b) some students, chosen for their interest in and their ability to contribute to the work of the Chaplaincy Team
      c) a priest who comes to the school to assist the Chaplain, e.g., in providing the sacraments.

 

2. Bridge Building:

"[The] notion of interlocutor is invaluable in understanding the unique role of the chaplain within the school. An interlocutor is one who speaks across different realities, so in a sense the chaplain is a facilitator of conversation within the school. The chaplain builds bridges of communication wherever they are needed."[14]

Our Catholic high schools, especially in urban areas, bring together a diverse group of people from different ethnic, cultural and
linguistic backgrounds, from varying social classes, and varied physical, intellectual and emotional abilities. Bridging and building community within the school is an essential part of providing a truly catholic education.

The Chaplain has a central role as "interlocutor" between the various segments of the school community, facilitating the recognition and celebration of the diversity that is present. This extends to building bridges between the various organizational parts of the school (e.g., between departments, Administration and staff, etc.), and may also include interpreting the school to those outside it.

"It is critical to the success of the school that individuals and groups learn to converse across these differences. The extent to which this happens, is the extent to which the school will thrive. The goal is not to eliminate diversity in the school but to make the differences an opportunity for growth."[15]


3. Prayer:

The Chaplain has an overall responsibility for the prayer life of the school community. Everyone is called to pray, but the Chaplain has a particular role of leadership and animation in prayer and in assisting other members of the school community to exercise their own call to prayer and to the leading of prayer. This can include:

 

 

4. Worship:

The Chaplain is responsible for preparing and coordinating liturgy services for the school. This includes:

 

 

5. The Sacraments:

The Chaplain has certain responsibilities in the school with regard to the celebration of the Sacraments.


6. Retreats:

The Chaplain is responsible for overseeing the school's retreat program. Ideally a full school retreat program should include:

7. Liaison with Local Parishes:

The Chaplain has a responsibility to maintain a link with the local Parish in which the school is located, and to the degree possible, with the home parishes of the students. This may involve, for example:

8. Counseling:

The Chaplain will be available as a pastoral resource to students and staff who wish support in their spiritual lives or who need comfort and spiritual direction because of some personal crisis. In the case of bereavement, this may include organizing bereavement groups in the school or assisting the individual to find appropriate grief counseling. Unless the Chaplain has professional standing as a counselor, the counseling he or she can offer will not be "professional counseling", but will be more at the level of active listening and assisting the individual at the spiritual level. The Chaplain must always be conscious of his/her own limitations and boundaries, and must know when and how to make referrals when appropriate to professional caregivers.

9. The Spirit of the Gospel:

A central role for the Chaplain, in conjunction with the Administration, is to witness to the Spirit of the Gospel and to endeavor to incorporate that Spirit into the life of the school community. This includes the following:

10. Justice and Peace:

As a particular and most important expression of the Spirit of the Gospel, the Chaplain will seek to foster in the school an awareness of the Corporal Works of Mercy and our call as Christians to respond to the Christ who is found in "the least of these". This can involve:


11. Crisis Response:

The Chaplain will be ex officio a member of the school Crisis Response Team. The Chaplaincy Team should also be called upon as a resource in a time of crisis.

The Chaplain should always be one of the first people informed about a serious illness or the death of anyone connected with the school community. The Chaplain can then be personally involved, and/or assist the school, the staff, or individual members of the school community, in making an appropriate Christian response.

 

6. Facilities and Supports
Provided for the Chaplain
 Facilities:
  • Each secondary school should have a chapel.
  • The Chaplain should have a private and properly equipped office.
  • The Chaplain should also have a space for meeting with staff or students.

Other Supports:
  • The Chaplain should be provided with an adequate budget to cover retreats, liturgies, chapel care, and other Chaplaincy expenses.
  • Chaplains should be given the time and financial support to take part in Chaplaincy organization events, whether local, regional, or provincial.
  • Chaplains need ongoing professional development and spiritual nourishment, and should be provided some time and financial resources for this purpose each year.

7. Reporting and Accountability
The Chaplain is responsible to the Principal for daily operational matters. These would include the types of services provided, the timing of events, relationships with the various groups within the school community, types of materials distributed, attendance, budget, and so on.

The school board should apply an overall vision and clear implementation policy for Chaplaincy within all of its schools, rather than having a fragmented approach from school to school. Chaplains should be affiliated with the central office through a supervisory officer who is clearly designated as having responsibility for Chaplaincy.

Although an employee of the board and subject to board and school policies, the chaplain is a minister of the Church through the mandate given by the Bishop of the diocese. The local Bishop is responsible for the quality and acceptability of the services and programs being offered by Chaplains. Chaplains must be approved and mandated by the diocesan Bishop.

It is the responsibility of the school board and of the supervisory officer overseeing Chaplaincy to submit to the diocesan Bishop for his approval the names of those being considered for appointment as Chaplains. How this approval is expressed or formalized may vary from one school board district to another, according to what has been decided upon with the local bishop.

The Chaplain should maintain good communications with the Bishop. This may include meeting with the Bishop on an annual basis, and/or reporting to him in some agreed-upon manner.
 
 
8. Qualifications and Experience
"A Chaplain/Chaplaincy Team Leader is a theologically educated and pastorally trained person, who helps develop, strengthen and nurture the faith of, and provide care for, the members of a school community."[16]

In determining whether a candidate for school chaplaincy is a "theologically and pastorally trained person," those charged with the responsibility for hiring should look for the kinds of qualifications and experience outlined here.

As schools and school boards move towards implementing a new set of qualifications such as these, it is important that a fair and just transition policy be established. People without full qualifications who are already serving as school Chaplains should be granted the time to pursue studies directed towards improving their qualifications. Similarly, if fully qualified people are not found to fill open chaplaincy positions, a school board may, for a temporary period, have to provide for the possibility of hiring someone who is not yet fully qualified but is in the process of achieving qualifications.

A) Educational Requirements:

The person has a Bachelor's degree.

AND

The person has successfully completed EITHER at the undergraduate or graduate level the following:

   1. At least ONE course in EACH of the following areas: New Testament, Old Testament, Theology, Ecclesiology, Ethics,
       Liturgy.
   2. *At least ONE course dealing with the history and social analysis of the Catholic education system in Ontario; the current
       reality (e.g., the partners in Catholic education); the culture of the Catholic high school; legal issues (both civil and church).
   3. *At least ONE course dealing with faith development, evangelization, prayer, and retreats.
   4. *At least ONE course dealing with pastoral counselling; spiritual direction; adolescence; professional boundaries; when
        and how to refer people to other available support services and resources.
  5. A field placement in high school chaplaincy (or equivalent pastoral experience).

B) Personal Requirements:

   1. The person is a Catholic who is in good standing with the Roman Catholic Church (or with a Catholic church of the
       Eastern Rite, if appropriate) and is devoted to the mission of the Church.

      AND

   2. The person should show a special charism for work with young people in the areas of liturgy, spirituality and apostolic
       endeavour. The person must be able to accept that young people and teachers alike face crises in faith and be able to
       support them in those difficulties. The person needs a capacity for empathy and compassion without being overly
       demanding or rigid. Persons in this work must be filled with a genuine Christian love for youth and impelled to lead them
       more fully to life in Christ.[17]

C) Teaching Qualifications and Experience:

Some school boards in Ontario have traditionally assigned members of the teaching staff as Chaplains, whether full or part-time. In other cases, boards have preferred to assign as Chaplains people who are not part of the teaching staff.

An Ontario Teaching Certificate (OTC) is not per se a qualification for doing school chaplaincy, but possession of an OTC and some teaching experience, especially at the secondary level, are certainly valuable assets in a candidate for a high school chaplaincy position. With or without an OTC, the high school Chaplain should possess a good knowledge of the high school culture, a familiarity with the teaching and learning environment and an aptitude for teaching. These are all essential if the Chaplain is to enter into a ministerial relationship with both staff and students.

Regardless of whether the Chaplain is hired and described contractually as a "teacher," the board and the school must maintain a clear distinction between the role of the "teacher" and the role of the "Chaplain". The school Chaplain, as outlined here, should be a person with specific pastoral and theological qualifications who is assigned to a role quite different from teaching, namely that of providing pastoral care for the whole school community.

D) Further Academic Formation:

Beyond the qualifications listed above, school boards should be considering hiring Chaplains with even fuller academic qualifications, and should provide encouragement, opportunity, and incentives for those already serving as Chaplains to seek further training.


Example


9. Salary and Benefits
Chaplains who are teachers and hired by their school board on teaching contracts will normally have their wages, benefits, and other working conditions covered by the teachers' collective agreement with the school board.

For Chaplains who are not covered by the teachers' collective agreement, school boards should, in justice, provide a salary grid separate from the teachers' grid, but with a similar wage scale and a comparable benefits package.

The SALARY SCALE we recommend[18] is as follows:

   1. Chaplains with a postgraduate Diploma, or with a Bachelor's degree and relevant Certificates (e.g., youth ministry,
        pastoral counselling) should have a salary range of $35,000. to $55,000. per annum.
   2. Chaplains with a Master's degree (or more) in a relevant area of study (e.g., divinity, theology, etc.) should have a salary
        range of $45,000. to $65,000. per annum.
   3. Chaplains, like teachers, should be paid throughout the year. If the salary is based on 10 months, it should still be at the
       appropriate annual level commensurate with qualifications, as in the case of teachers. Salaries for Chaplains should be
       pro-rated over 12 months, as for teachers, so that pay periods cover the whole twelve months.
   4. School boards should consider offering Chaplains suitable increments for further professional development (e.g.
       certificates or degrees in areas related to Chaplaincy). This would encourage continued updating and upgrading of
       Chaplaincy services.
 
10. Hiring Policy
Each Catholic school board should adopt a set of guidelines for school chaplaincy, along the lines of this present document. Such guidelines should include the establishment of a board-wide policy regarding the hiring and/or appointing of Chaplains for secondary schools so that this is done in a consistent manner in all the schools in keeping with the board's guidelines.

The board should include its own Chaplaincy personnel in the process of establishing guidelines and hiring polices.

In setting up hiring policies, Boards might consider including, for example:
  • Provisions for the advertising of positions, both internally and externally;
  • An accepted set of expectations with regard to the qualifications, experience, and personal qualities desired in a Chaplain;
  • Guidelines on interviewing, things to look for, etc.;
  • Involvement of some of the board's Chaplaincy personnel in the hiring process;
  • Provision for temporary training placements of Chaplains in school settings;
  • A mentorship system, linking new Chaplains (or perhaps ALL Chaplains) to someone who can be the person's mentor.
 
11. Evaluation
An evaluation format must be developed by each school board which takes into account the unique nature of Chaplaincy and the specific requirements of the role. Chaplains themselves should most certainly be involved in the development of such an evaluation format or tool, along with board staff, administrators, etc., in consultation with the local Bishop.

The evaluation format for Chaplains should be based on the board's Chaplaincy guidelines, so that the types of skills, success indicators, etc. be those related to Chaplaincy work, rather than teaching, social work, or some other role.

The evaluation process for Chaplains should include a variety of input, such as:
  • Self-evaluation
  • Evaluation by a peer or mentor
  • Evaluation by the Administration and/or the Chaplain's immediate supervisor.
  • Consultation with the local Bishop regarding the evaluation
As with any other staff members, the board's contractual arrangements with Chaplains should spell out safeguards concerning openness and transparency in the evaluation process, just cause provisions regarding disciplinary actions or dismissal, and a clear and proper appeal process.

 


ENDNOTES

[1] New Directions – II: Pastoral Care Ministry in a Catholic Secondary School, The Ontario Conference of Catholic Bishops, 1985.
 

[2] Ibid.

 
[3] Educating the soul: Writing Curriculum for Catholic secondary Schools, by Larry Trafford, in consultation with the Institute for Catholic Education and the Catholic Curriculum Cooperative, Central Ontario Region, (Toronto, 1998), p. 3.

 
[4] Ibid., p. 10.

 
[5] Ibid., p. 10.

 
[6] Guidelines for Secondary School Chaplaincy Teams, Catholic High School Commission, Archdiocese of Toronto, (Toronto, 1983; revisions 1987, 1990) p. 4.

 
[7] Guidelines for School chaplaincy in Ontario, Catholic School chaplains of Ontario, (Hamilton, 1996), p. 4

 
[8] Dogmatic Constitution on the Church: Lumen Gentium, 33; in The Documents of Vatican II, Walter M. Abbott, S.J., Gen. Ed.; Very Rev. Msgr. Joseph Gallagher, Translation Ed.; (New York, Guild Press, 1966), p. 59.
 

[9] Decree on the apostolate of the Laity: Apostolicam Actuositatem, 3;  The Documents of Vatican II, p. 492

 
[10] Lumen Gentium, 33;  The Documents of Vatican II, p. 60.

 
[11] Lumen Gentium, 35; The Documents of Vatican II, p. 62.

 
[12] Foreword, by Bishop Frederick B. Henry, in Bridges to Faith: The Why and How of High SchoolChaplaincy, Catherine M. Pead, Ed., (Ottawa, Novalis, 1991),  p. 10.
 

[13] Guidelines for Catholics Engaged in Pastoral Care in Institutions within the Province of Ontario, Ontario Conference of Catholic Bishops, (Toronto, 1995), p. 8; endnote, p. iv.
 

[14] “the Role of the Chaplain,” by Catherine M. Pead, in Bridges to Faith: The How and Why of High School Chaplaincy, p. 34.

 
[15] Ibid., p. 35.

 
[16] Guidelines for School Chaplaincy in Ontario, p. 4.

 
[17] New Directions – II; The wording regarding personal qualities is taken almost entirely from this 1985 document by the Ontario Conference of Catholic Bishops.
 

[18] The salary ranges suggested here are based on average teachers’ salaries at the time of writing in 1999.