Progress report of long-range planning for school buildings in Georgia: program of educational development for Georgia [July 1, 1945]

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PROGRESS REPORT OF LONGRANGE PLANNING
FOR SCHOOL BUILDINGS IN GEORGIA
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Program of Educational Development
for Georgia
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ISSUED BY
EDUCATION PANEL
Agricultural and Industrial Development Board of Georgia
Athens Georgia

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AGRICULTURAL AND INDUSTRIAL
DEVELOPMENT BOARD
OF
GEORGIA
Blanton Fortson Chairman
L Vaughan Howard Executive Director
Name of Member Address
Ivan AllenAtlanta
T F AbercrombieAtlanta
Charles L Bowden Macon
W N BanksGrantville
Cason J CallawayHamilton
M D Collins Atlanta
Ryburn G ClayAtlanta
Mrs Frank C DavidColumbus
Blanton Fortson Athens
Charles B GramlingAtlanta
Robert W GrovesSavannah
Alfred W JonesSea Island
Tom LinderAtlanta
Wiley L Moore Atlanta
Walter R McDonaldAtlanta
Henry McIntoshAlbany
W H McNaughtonCartersville
J L PilcherMeigs
Robert StricklandAtlanta
M King TuckerWaynesboro
Wilson WilliamsAtlanta
EDUCATION BULLETIN No 11
JULY 1 1945

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EDUCATION PA1EL
M D Collins Chairman Atlanta
Mrs Frank C David Columbus
Wilson Williams Atlanta
0 C Aderhold Director Athens
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Written By
L 0 Rogers 0 C Aderhold
and
Paul Carroll T E Smith
S P Clemons W A StumPf
Johnnye V Cox a H Colbert
Charles P Hudgins
County School Superintendents
Staff Members of the Public Works Panel
Bell Winn
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PREFACE
This bulletin is a brief progress report of one phase of
the program of educational development carried on by the Education Panel
of the Georgia Agricultural and Industrial Development Board It de
scribes the work in school building planning in approximately onehalf
of the counties in the State during the past year July 1 1944 to
June 30 1945
Wise participation in a postwar building program is one of
the urgent concerns of public officials on the state county and lo
cal levels The Public Works Panel of the Agricultural and Industrial
Development Board is actively engaged in assisting officials to formulate
plans for roads air ports streets court houses and other public
buildings The Education Panel is stimulating and assisting county and
local school officials to develop longrange plans for school buildings
The two panels Education and Public Works are coordinating
the school building needs and plans with the total public works needs
and plans for the county or local unit The school building needs are
thus studied and planned as a part of a total public works postwar
building program
The progress made in developing postwar school building plans
in onehalf of the counties in the State is in large part due to the
interest enthusiasm and work of the superintendents and boards of
education In every county these officials have participated in gather
ing the facts and other information as a basis for determining needs
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and have helped to interpret these data and project the plans
In problems of planning involving great controversy such as
consolidating schools developing larger high school units
and the like these officials have net the challenge analyzed
the facts and planned courageously In most instances these
plans have become official through action of the hoard of educa
tion The execution of the building plans awaits the end of the
war
The Education Panel is projecting its plans to complete
the program of school building planning in each county in the
State by July 1 1946
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FROGRESS IN LONGRANGE PLANNING FOR SCHOOL BUILDINGS IN GEORGIA
July 1 1944 June 30 1945

Plans completed
56 counties
fJ Need no buildings at
s I this time4 counties
31
Plans Practically
PSa completed6 counties
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Plans Partially com
pleted6 counties
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TABLE OF CONCENTS
Page
Preface
Map of the State Showing the Number of Counties and Locations
in Which a Postwar Building Progran Has Been
Planned
Chapter I Scope and Pattern Followed in Determining the
Building ITeeds and the Method Used in
Setting Up Plans
Chapter II Sone Results Achieved in Planning School
Buildings in Georgia
Chapter III Major Obstacles Encountered in Developing an
Efficient Building Progran
Chapter IV A Brief Description of Tragic Situations
Found in Different Counties
Chapter V The Next Steps for the Education Panel in
Planning School Buildings
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CHAPTEE I
SCOPE AND PATTEBN FOLLOWED IN DETERMINING THE BUILDING MEEDS
AND THE METHODS USED IN SETTING UP PLANS
The planning of the postwar school building program in the coun
ties involved four major steps They are as follows
1 Collecting and organizing basic factual data
2 Proposing a list of building projects based upon the needs
as revealed by the factual data
3 Conferring with local school authorities and agreeing
upon a program for the county and adoption of a long
time building policy and
4 Putting the report in permanent form and on file
The remainder of this chapter is devoted to a brief outline of
the procedure followed in developing each of the above steps
1 Collecting and organizing basic factual data
a Making a study of the county school map with re
spect to roads location of schools distances be
tween schools accessibility to high schools and
density of population both white and Negro
b Studying the administrative organization to de
termine how the system is operated Examinations
are made to determine how the board operates wheth
er or not there are independent systems within the
county and to what extent local boards of trustees
administer the educational program of the local
school districts
c Making a study of the school records and reports to
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isSSfidetermine the number of elementary junior high and
senior high schools for both white and Negro students
and the attendance in each The curriculum offerings
are studied along with the instructional cost per pupil
Here an effort is made to determine whether the schools
are being operated efficiently and economically or wheth
er they should be reorganized From the records the
transportation system is studied to determine the number
of buses used conditions of same the type of ownership
cost per pupil per year and the total cost per year to
the system
d Obtaining from the county school superintendents annual
reports and compiling in tabulated form by races broken
down into elementary and high schools the average daily
attendance by years for the past five years After these
records are obtained along with a study of the popula
tion trends in the county an estimate of the schools
attendance is projected through the next five years
e Studying the state auditors report and the superintend
ents annual financial report to determine the amount
of revenue the sources from which derived during the
past five years and making an estimate of the amount
of money that will be available each of the next five
years
f Obtaining fromthe state auditors reports and the
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superintendents annual financial reports the total
expenditures per year for the past five years and based
upon the present legal limitations making an estimate
of the anticipated revenue that may be expended for
each of the next five years
g Determining from the records the bonded indebtedness
of the county school system and of the separate school
districts with date of maturity
2 Proposing a list of building projects based upon the needs
revealed by the factual data
a The information obtained as outlined above supplemented
by information furnished by the county school superintend
ent principals and board members is used to develop
a list of building projects for the county or system
In setting up the projects consideration is given to
1 needs for consolidating units especially the
high schools 2 curriculum trends and needs and
3 ability of the school district or system to finance
fifty percent of the cost of the project
b The building projects are placed upon forms ready to be
filed with the Public Works Panel ITo attempt is made
to draw plans and write specifications
3 Conferring with local school authorities aM agreeing upon a
program for the county and adoption of a longrange building
policy
a After a system has been worked out according to the a
bove pattern a conference is held with all the mem
bers of the board of education and the superintendent
At this conference all the facts are reviewed and
Placed before then for their information consideration
alteration and approval The hoard members are encourag
ed to feel that it is their program and that they are
free to alter change or discard any or all of the pro
jects listed
b When a thorough study has been made by the board and the
members are satisfied with the program as set up they
are asked to adopt it in the form of a resolution
4 Putting the renort in permanent oje sM fifi tileK
Following the approval of the respective boards the entire
report including board action is typed in triplicate One
copy is returned to the system superintendent one is filed
in the office of the Education Panel and the third is sent
to the director of the Public Works Panel in Atlanta Georgia
Upon the completion of the work of the Public Works Panel in
a county the entire program including the work of the Educa
tion Panel in that county is printed and bound in an attrac
tive pamphlet for distribution to the public Except for the
printing of the reports the Education Panel has completed
the work in 56 counties and in 9 independent city systems
In six other counties the study had been made and the work
partially completed
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The forms used in securing the data and in projecting trends
nay be found in Bulletin One published Dy the Public Works
Panel of the Agricultural and Industrial Development Board
Readers who are interested in seeing the completed plans for
a county or system may write to the Director of the Education
Panel Athens Georgia
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CHAPTER II
SOME RESULTS ACHIEVED IK PIABBIBG SCHOOL BUILD DIGS IB GEORGIA
Some tangible evidence is apparent that the work of the Panel is
beginning to hear fruit Listed below are a number of changes that have
either been made or are in the process of heing Bade as soon as conditions
permit
Nine examples have been selected from the studies and planning
as carried on in about seventy systems These are presented to show some
of the major changes taking place
EXAMPLE 1
The county and the independent city system have legally merged
into one county unit system Prior to the merger the county hoard operat
ed four email rural high schools with enrollments In 1944 of 32 44 41
and 40 students respectively The cost of instruction per pupil in each
school was 21934 18145 16576 and 12833 respectively In the
independent city high school there were 85 pupils enrolled and the cost
per pupil was 11519 per year The instructional courses available to
the students were limited to a minimum varying from 12 to 21 units with
an average of only 15 units The new plan will enable the county to have
only one high school which will have an enrollment of 252 students and
will permit the school to offer at least 24 units of work including vocation
al training creative arts slum work guidance etc and at the same
time reduce the instructional cost from 30233 per year to 18282 per
year After allowing for the cost of additional transportation involved
a net saving per year of 10000 will he realized
6EttMFLE 2
At the beginning of the 194445 school term the county hoard of
education had a surplus of 12000 Salaries were increased and addition
al teachers in excess of the state allotment were employed As a result
at the close of the 1945 school year the surplus was used up all of the
current revenue for the year was consumed and the board was in debt about
500
Based upon the findings of the survey by the Education Panel a
reorganization was recommended and approved by the board The reorganiza
tion will permit the elimination of the six teachers who were paid by the
local board the replacement of certain county license teachers by higher
grade certificated teachers so that allotments from the State will be suf
ficient and local supplements will be unnecessary Thus the local expenses
can be reduced by between 7000 and 8000 for another term and at the
same time better opportunities will be provided for the students
EXAMPLE b
The county school superintendent and the county board of educa
tion approved a program of consolidation developed by the Panel in which
the number of schools in the county will be reduced from 15 to 5 thereby
eliminating 8 oneteacher schools and making it possible for all high
school students to attend one central county high school Such a program
will enable the board to reduce the number of teachers from 39 to 34 This
would result in a saving of at least 5000 per year A building program
will have to be completed before the reorganization can be effected This
county is wholly rural There are no railroads or industrial plants of any
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kind in the county The total assessed valuation of the property of the
county subject to tax is less than 250000 The amount of funds rais
ed by a fivemill levy for school purposes is less than 1200 per year
Therefore adequate physical facilities cannot be provided with local
funds alone
EXAMPLE 4
Through the assistance of the Education Panel the school authori
ties have planned a program by which at least 18 schools will he consoli
dated into 7 thereby eliminating 11 snail poorly equipped schools in
the county At present there are 32 schools in the county system two of
vhich are senior high schools There are 24 others attempting to do
some ninth grade work with an average of only 8 pupils in the two upper
grades The instructional cost for these junior high school pupils is
unreasonably high and the instruction is of the poorest type As soon
as buildings can be provided at the senior high schools the plans as ap
proved call for transferring all high school students to these senior
high schools TheBe plans will not result in a great financial saving
but will provide a far superior educational program for the students
EXAMPLE 5
In a small rural county with a white population of 1676 and 353
students in school the county operates two schools both senior high
schools In the high school department there are only 46 and 55 students
enrolled respectively costing an average of 11900 per year per stu
dent There are only 15 units of work offered Both schools will lose
their accrediting rating after 1946
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The board has approved plans to consolidate these two schools
into a single county high school and to improve the curricula so as to
offer at least 20 units of work This can he done at less expense
than at present except for providing the necessary building facilities
When these plans are effectuated an additional cost of 500 in trans
portation per year will he incurred hut all of the students of the
county will he provided with the advantages of an efficient accredited
high school with an enriched program of training
EXAMPLE 6
Acting upon the survey and recommendations made hy the Educa
tion Panel the city independent hoard and the county hoard of education
held an election and the two systems were merged into a single county
unit system to he operated under the county hoard of education Thus
the rural students can have the same educational advantages as the city
students This merger simplifies the administration of the schools and
provides for a more efficient business organization
Further plans have been approved by the county board which
when buildings can be provided will reduce the number of school dis
tricts from 21 to 8 When completed all one two and threeteacher
schools for the white students will be eliminated and a good system of
consolidated grades schools will be established for all the students
in the county It will require some time to complete the program but
a good beginning has already been made
EXAMPLE 7
The county has a very small 30 percent white population
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with a school attendance of 255 elementary and 126 high school students
in the four schools The State allots the county 21 teachers hut the
county employs 29 The salaries of the eight extra teachers are paid
from local county funds
The Education Panel recommended that all white students of
the county beginning with the seventh grade be transferred to a cen
tral county high school and that the other three schools be limited to
6 grades each This reorganization will assure all students the faci
lities of an accredited high school If these changes had not been
made there would probably not be an accredited high school in the
county in 1946 The savings in salaries by eliminating the 8 teachers
paid by the county will be at least 8000 per year and the only
extra expenses incurred are in providing some additional building faci
lities for the central school and in an increase of 50 per month for
transportation The board approved the recommendations and is consider
ing ways and means of putting them into effect
EXAMPLE 8
The recommendations in one county included the legal merging
of the two systems under the county board of education and the es
tablishment of a central high school with a countywide bond issue to
finance the necessary building program The city and county school
boards met jointly with the Education Panel representative and voted una
nimously to accept the recommendations Plans are now underway for
calling an election to enable them to put the program into operation
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EXAMPLE 9
A reorganization of the entire school program of the county has
been recommended The plans provide for the independent city system
to merge with the county system by contract and to make the city
schools available to any rural school students whom the county board
may send in to the central county school This recommendation has al
ready been approved and the reorganization is now under way
The plan provides also that three of the small rural high
schools he eliminated and that the eighth and ninth grade students
in two additional rural junior high schools he transferred to the three
senior high schools
The county hoard has approved the plan The present merger
system will provide for better opportunities for all the students at
an appreciable decrease in cost
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CHAPTER III
MAJOR OBSTACLES ENCOUNTERED IN DEVELOPING AN EFFICIENT
SCHOOL BUILDING PROGRAM
Many obstacles are encountered in planning school building programs
Some of the most important difficulties grow out of 1 inadequate finances
2 education for Negroes 3 existence of independent school systems
4 lack of information as a basis for planning school plant needs 5
transportation and 6 lack of uniformity in making tax assessments
1 Inadequate finances
In most schools all of the income is used for oprtating expenses
and there is little opportunity to create a reserve for building purposes
Practically all new buildings must be financed with bond issues The new
constitution provides new techniques for issuing bonds The county is the
unit for issuing bonds for school purposes
2 Negro schools
A second series of problems is encountered in endeavoring to de
velop an efficient educational program for the Negroes Generally very
little consolidation has been done for Negroes and practically no trans
portation has been provided Most school officials have expressed them
selves as favoring the development of a consolidated system of Negro
schools with a reasonable amount of transportation This they feel can
be done only when additional funds for buildings and transportation are
made available Without Federal or state aid very few counties could
undertake an expanded program of this type
3 Independent school systems
The existence of an independent city school system in a county
12Ioften becomes an insurmountable obstacle to the development of an effi
cient and economical educational and building program In many cases
there is very little cooperation between the county and the city systems
As a result each system has set up its own program built the physical plants
and established high schools In some counties students are transported
many miles from the city limits to rural schools where the enrollment is
small and the courses of instruction are limited Since these schools
have already been established school boards find it very difficult to a
bolish them and to conolidate then into larger units
4 ack of information
A fourth obstacle is the lack of accurate information upon which
school plant needs may be determined Inadequate planning has been the
general rule and accurate pertinent information has never been assembled
in most counties Improperly located buildings which increase transpor
tation and instructional costs have been one of the results of this
inadequate planning These buildings improperly located serve as a
positive detriment to proper organization in many counties
5 Transportation
A fifth difficulty results from the fact that the equalization
program is such that a consolidation of school centers may decrease the
state allotment for teachers salaries and thus decrease the allotment
of administrative funds b consolidation may increase local transporta
tion costs which are borne primarily by local school units and c in
terchange of students across county lines is discouraged
136 Lack a uniformity in making tax assessments
A fifth difficulty is the financial loss that nay accrue as a re
sult of the lack of uniformity in assessing property In cities which
have independent systems it is not uncommon to find the same piece of pro
perty so assessed as to yield a lower amount for county purposes than
for city purposes
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CHAPTER IT
A BRIEF DESCRIPTION OF SOME TRAGIC
SITUATIONS FOUND IN COUNTIES
From the study made in the 64 counties have been revealed many
interesting but tragic situations that are the direct result of the lack
of intelligent planning Many of these are brought about fron inade
quate legislation and others from the lack of personnel for the proper
supervision and control by the State Department of Education A few
examples to illustrate the statement are listed below
1 Inequalities in income
In one county having a school population of 1127 enrolled all
white 61 percent of all the property is exempted from taxes The 39
percent that is taxable makes a tax budget of less than 250000 The
school levy of five mills yields only 1100 per year while the budget
for operating the schools amounts to 44468 The superintendents salary
is 1500 per year
Of the total budget less than 3 percent is provided from county
and local funds A 15nill levy will produce less than 3500 per year
or about 7 percent of the budget for operation
In another county having approximately the same number of students
872 white and 289 Negro or a total of 1161 the county spends 80312
per year has an assessed valuation of 1750000 subject to school tax
and raises 8686 from the county or 11 percent of its expenditures
Each of the above counties is a typical rural county but one has
two railroads that transverse it while the other has no railroads or in
dustries within its borders The above are typical of many other counties
15and systems in the State They are cited to show the vast inequalities
in financial ability existing among the counties of the State and the
impossibility of some counties to provide adequate physical facilities
from local funds A substantial state fund to he distributed to local
units on an equalization basis is necessary in order to reduce these in
equalities in the school plant field
While the above figures are taken from the records for general
operations it is apparent that for building purposes the inequalities
are much greater since there are no state nor Federal fluids provided
for buildings Without such outside aid the former county will never be
able to house properly its students
Prom the above facts it is apparent that for operation the edu
cational opportunities offered in the two counties differ considerably
For building purposes however when all the funds are raised locally
the difference is far greater Assuming that 10 percent of the total
valuation of the property exact figures are not available is exempted
from bond issues as a result of personal property exemptions the
wealthier county could issue approximately 136788 worth of bonds while
the poorer could issue only 43292 to provide school buildings for ap
proximately the same number of students
At the normal cost of school house construction the poorer
county could never finance an adequate building program for its students
Only by means of state aid or Federal aid for building will counties
of this poorer type ever be able to offer their students satisfactory
school buildings
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2 Small high schools are expensive and inefficient
In one county with a white population of 11475 there are
eight senior high schools seven of these have an average enrollment of
less than 60 students each For these 413 students 30 teachers are
employed This is a ratio of one teacher for each 137 pupils The
instructional cost per pupil per year is atove 106 At the same
time the course of study is limited to an average of less than 16 units
per school
If the county hoard had legal authority to raise funds with
which to provide buildings these schools could he comhined into two
or throe strategically located schools and operated with twothirds
the present number of teachers and at the same time offer a much hetter
program of instruction Upon careful study it was found that in at
least 37 of the 66 counties studied similar conditions exist in varying
degrees
A lack of intelligent planning in consolidation is proving ex
ceedingly costly The excessive costs are incurred not only in operating
expenses hut also in capital outlay costs Expensive huildings have
been constructed and have been ahandoned completely within a few years
because of a lack of sufficient students
In one county a few years ago the citizens hoping to estahlish
a senior high school voted bonds and built a permanent brick building
After operating for 3 or 4 years with less than 30 students the build
ing was abandoned and the students from the district were sent to the
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central accredited county high school Yet for a score of years the
citizens will be burdened with this bonded indebtedness
The above example is typical and includes both elementary and
high school buildings in a great number of the counties studied
3 JSsm Pnfl11 independent city gystea should be combined
with the county system
Several years ago by act of the legislature a very small vil
lage established its own Independent school system Today this system has
only 24 white and 17 Negro students in regular attendance in oneteacher
schools in which only 6 grades are taught The county system takes care
of the high school students of the village without charge
The above is a very extreme case but elimination of many inde
pendent systems would result in benefit to the independent systems con
cerned and would make it possible for the entire county to organize in
a way to improve its educational program
4 Systems should have guidance in issuing bondst
A small school district in the early nineteen twenties voted
a 6000 bond issue The bonds bear six percent interest and no payments
will be due until thirtyfour years after the date of issuance At the
expiration of the due date for these bonds the taxpayers will have
paid 13000 in interest and will still owe the original 6000 principal
Close examination of policies of issuing bonds in the future can protect
the taxpayers from such expensive situations
5 Many examples of waste as a result of no planning
In one Hegro school of ten classrooms and an auditorium there
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are twentytwo regularly enployed teachers two in each classroon and two
in the auditorium The classes range fron fifty to eight students each and
fron two to four students to each desk
In another county two rural ITegro schools each located within
ten niles of a good central county high school for Negroes four years of
high school work are offered One of these schools has only ten students
in the high school and the other has only twelve The cost of instruc
tion per pupil per year in each school is 270 and 290 respectively The
superintendent reports that the cost of transporting these students to the
central high school would he only 900 per year would require no addition
al teachers in the high school and would save the county 4000 per year
In one county the hoard of education is paying 105 per nonth to
operate a hus for eight niles to transport two children This is a cost of
47250 per pupil per year
In a county a 40000 trick school huilding was constructed twenty
years ago without a single ventilator in walls helow the floor level The
result has heen that the entire floor and foundation had to he replaced on
account of dry rot In the sane county another equally expensive huild
ing was constructedwith ventilators hut they have recently been closed
with brick cutting off all ventilation These conditions axist in many
othor counties
The entire average daily attendance for all white schools in a
county is 255 elenentary with 126 in high school For these 381 students
the county naintains two high schools nine niles apart with enrolments
of 38 and 73 respectively The students in all these schools could be
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transported to one high school and given a broader curriculum offering at
an increased transportation cost of not more than 500 per year This
would save the salaries of six teachers A conservative estimate of the
saving is 5500 per year
In one county which has both a county and an independent school
system the same persons serve as chairman of both boards of education
In addition to the chairman two other members serve jointly on both
boards
Two incorporated towns in the same county with more than 2000
population each and a combined tax valuation of more than 4000000 do
noifc pay any school tax Nor does any individual living in the towns pay
any school tax These corporationowned towns are not independent school
systems but contract with an independent system to operate their schools
A county has thirteen Negro schools with an average daily at
tendance of 311 students Two schools would amply serve the county and
would save the State the salaries of onethird of the teachers now being
paid The county would lose some administrative funds resulting from the
loss of teachers If some adjustment could be made so that the county
would not lose administrative funds by consolidation the educational
program could be greatly improved
Another county has the distinction of never having floated bonds
for any purpose The courthouse was built by Works Projects Administra
tion funds matched by accumulated tax funds Only one white school is
necessary to serve this county
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The cases cited here are samples of sone interesting and
at the sane tine disturbing conditions which have arisen in Georgia as a
result of a lack of planning The tine has cone when local and County
school authorities nust justify funds expended under their direction
The Education Panel is endeavoring to set a pattern for sanedowntoearth
planning based on correct factual data and on conditions as they are
21CHAPTER V
THE NEXT STEPS FOR THE EDUCATION PANEL
IN PLANNING SCHOOL BUILDINGS
The work of the Education Panel in stimulating and assisting
school systems to plan for a more adequate school plant has led the
staff to the conclusion that the task is only partially completed and
that the following steps should be taken in 194546
1 Studies should be continued in the other 7580
counties in order that all counties and systems
in the State may he prepared for and take ad
vantage of anticipated postwar Federal Building
Program
2 Recent legislation regarding school buildings in
Georgia requires that after July 1 1946 school
building programs must conform to an overall
county plan and that this plan must be based upon
a preliminary study of school plant needs The
plan developed by the Panel in about onehalf of
the counties satisfies this requirement The job
should be finished next year in order that all
counties may have an equal opportunity in getting
programs in operation
3 The recent legislation referred to above requires
that intensive studies be made in a county to de
termine specific location of buildings kinds of
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buildings to meet curriculum needs and the like
In order to carry out the law techniques must be
developed for making these intensive studies
techniques for naking spot naps trends in popu
lation density of population occupational status
and trends etc should be discovered and tried
out The Panel proposes to develop a procedure
for naking such surveys This will involve inten
sive work in three or four spot counties
The above proposals will utilize the services of
one fulltine and one parttine person
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