Working papers used by the Govenor's commission to Improve Education preparatory to formulation of recommendations reported in Educating Georgia's people : staff memorandum numbers 1-11

WORKING PAPERS USED BY THE GOVERNOR'S COMMISSION TO IMPROVE EDUCATION
PREPARATORY TO FORMULATION OF RECOMMENDATIONS REPORTED IN EDUCATING GEORGIA'S PEOPLE
STAFF MEMORANDA NUMBERS 1 - 11 GOVERNOR'S COMNISSION TO IMPROVE EDUCATION
STATE CAPITOL - ATLANTA, GEORGIA FALL 1963

INTRODUCTION
These materials contain the background information prepared by the staff of the Governor's Commission to Improve Education for consideration by the full Commission preparatory to formulating its recommendations. The materials were prepared as staff memoranda and are reproduced here in the forms of the original working papers without reorganization or revision.
During August and September 1963, a series of allday meetings were held in which small groups of Commission members met with the staff and consultants for the purpose of identifying and exploring the important issues and problems with which the Commission would deal. The eleven memoranda were then developed by the staff for presentation to the full Commission and consideration by it in a series of seven full-day meetings during the month of November. The last two days of these meetings were devoted to the formulation of recommendations which were reported in Educating Georgia's People, presented at the Governor's Conference on Education held December 10, 1963, in Atlanta, Georgia.
These staff memoranda were given relatively wide distribution during the course of the Commission's work. They are here combined within one cover for limited distribution to selected educational agencies within the state, to major libraries, and to educational research and planning agencies in other states who might wish to use them.
, ..
ii

STAFF MEMORAlIDA
INTRODUCTION -- EDUCATIONAL OBJECTIVES MEMORANDA
1. Georgiats Pcpulation 2. Georgiats Economy
3. Georgiats Present Educational System 4. Education: For \f.'1om and F01' What? 5. Organization and Adninistration of Education 6. Georgiats Minimum Foundation Program for Education 7. The Program of Higher Education 8. Vocational Education 9. Georgiats P~bllc Junior College Program
10. The Elementary and Secondary School Programs 11. Financing Georgiats Educatior.al System
ii1
".(.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, S. W. ATLANTA 3, GEORGIA
INTRODUCTION TO STAFF MEMORANDA 1, 2, & 3
E D U CAT ION A L o B J E C T I V E S
SECOND DRAFT REVISED: NOVEMBER 1, 1963

GOVERNOR SANDERS~ OBJECTIVES FOR EDUCATION
1. Provide improved educational opportunity for all Georgians -- children, youth and adults.
2. Establish equality of educational opportunity regardless of station or where a child may live.
3. Establish and maintain minimum standards for schools
as to size and program so that every child can attend an accredited school.
4. Improve the quality of public education through new, strengthened and balanced programs for academic and occupational preparation.
5. Develop a program to attract, hold and fully utilize
good teachers throughout our public schools and university system in a manner that will upgrade their qualifications, performance, compensation and morale.
6. Encourage organization of state and local administration to improve efficiency, eliminate waste, and insure better results from our education dollars.
7. Bring educational television facilities within range
of all citizens in the state by completing and equipping a statewide educational television network, and provide adequate programming for educational purposes.
8. Establish and maintain adequate planning, research and experimentation for education at all levels.
9. Provide adequate financial support for an improved public school system including a new partnership agreement of state and local effort so that every Georgian receives the benefits and pays a fair share.
10. Provide sufficient financial support for the University System of Georgia to improve the quality of education and fit it to the needs of modern Georgia in the space age and to maintain research facilities for the continued improvement of industry, business, agriculture and government.

INTRODUCTION
The staff memoranda submitted to the members of the Governor's Commission to Improve Education on September 30, 1963, summarize information collected by the Commission staff about:
I. Georgia's population 2 0 Georgia's economy
3. Georgia's present educational system
One compelling fact runs throughout all of this material -- the fact that Georgia is changing rapidlyo
Georgia's people are changing in terms of where they live, how they earn their livings, their educational and economic level, as well as in terms of how many of them there are.
Georgia's economy is changing in terms of the kinds of enterprises which comprise it, the kinds of jobs which are available, the educational requirements of those jobs, and the total income which is generated within the state.
Georgia's educational system is changing in terms of the number of children to be educated~ the number of years those children stay in school, the types of education they receive, the qualifications of their teachers, and the sizes of the schools they attend o
A comparison of conditions ten years or so ago with conditions today makes evident the remarkable changes which have taken place within the recent memory of most Georgians. Many such comparisons are included in this report.
A comparison of conditions today with those which can be estimated or projected for ten years or so in the future also provides remarkable evidence of the continuing transformation of Georgia which can be expected. However, these future estimates, predictions or projections are subject to modification. It would be a mistake to view most of them as predictionso Georgia's future will be affected by unforeseen circumstances which are beyond the control of Georgians, but it probably will be affected even more by the deliberate actions of Georgia's leaders and people. These deliberate actions will largely determine whether Georgia falls short of or exceeds the estimates about the future included in this report. It is important that this report be read with this fact in mind.

EDUCATIONAL OBJECTIVES
The development of a master plan for the improvement of education in Georgia involves three steps: the identification of the scope of the problem in terms of the number of people to be educated and of the kind of world for which they will need to be educated; agreement upon the broad educational goals upon which Georgians want their educational program based; and finally, the development of a specific program which will translate those goals into reality.
The information presented in these three staff memoranda should assist Commission members in identifying some of the broad educational problems which confront Georgia. Subsequent memoranda will provide more detailed information about more specific educational problems.
Governor Sanders is proposing to the Commission ten basic objectives for education in Georgia. These are listed on the first sheet of this document. They are part of the second phase of the Commission's work -- the identification of the broad educational goals upon which Georgians want their educational program based.
Educational problems can be identified and evaluated only in terms of educational objectives. There is no such thing as a "problem" except as an obstacle to the attainment of some goal. In an enterprise as complex as pUblic education the basic goals or objectives necessarily are broad, but when these broad goals are well conceived it is possible to derive from them the more detailed objectives which are also needed. The first step always is the formulation of the broad objectives.
Criteria for Judging Educational Programs
As the Commission works to develop specific proposals for the implementation of its educational objectives, the following criteria for judging educational objectives and educational programs will be applicable.
Education must be RELEVANT
Education must be relevant to the needs of individual people and communities. This would appear too obvious to need stating. However, when one looks carefully at our educational problems it is apparent that many of them grow out of the fact that the education being

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offered is not relevant to people's needs. The explanation for this situation lies principally in the fact that people's needs are rapidly changing in this modern world and our educational system simply has not kept up.
A modern educational system must be geared to the needs of today and -- even more important -- of tomorrow. A child is cheated if his education prepares him for a kind of job that no longer exists and for a kind of world that no longer exists. A community and a state are cheated if they have paid the bill for educating their children only to find that they were educated for yesterday's world instead of today's and tomorrowvs.
Education must be EFFICIENT
Education is one of the biggest and most expensive businesses in the state and in the nation. It involves more people and costs more money than almost any other business or activity -- public or private. This investment of time and money is worthwhile because of the immense returns which can be realized from it. However. the importance of efficiency in so large an operation cannot be overemphasized.
Genuinely improved efficiency can be achieved in several ways -- by producing an equal result at a reduced cost. by producing a better result without increasing the cost. or by a well-planned investment which will raise the level of achievement more rapidly than the increase in expenditures. Increased educational efficiency should be sought in as many ways as possible.
Educational Programs should be COMPREHENSIVE
Georgia's educational programs need to be comprehensive in several different respects. They must be comprehensive enough to meet the varied needs of individual students at each level. They also must be comprehensive enough to meet the needs of communities and of the state for educated citizens and trained manpower. There also must be geographical comprehensiveness so that educational opportunities are within reach of all citizens. The specific implications of comprehensiveness are different in different types of institutions. but the general principle is applicable to all levels of education.

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Education must be Provided at an Acceptable Level of QUALITY
"Quality" has different implications for different levels of education and for different types of programs, and it must be striven for in them all. Furthermore, quality is a relative concept which, in our modern world, is based on norms which steadily move higher. An adequate education of a few years ago often represents a less than adequate level of quality today.
Quality can be measured in several ways -- by directly measuring the output (such as the ability of students to do certain things); by measuring the input (such as teachers, buildings, equipment, etc,) on the assumption that the input and output will have some direct relationship; and by comparing programs with others that are known or thought to be worth emulating, All of these methods for measuring quality have their uses, and all of them should be utilized in developing and assessing an educational program.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET. S. W. ATLANTA 3. GEORGIA
STAFF MEMORANDUM NO. 1 G E 0 R G I A'S POP U L A T ION
SECOND DRAFT REVISED: NOVEMBER 1. 1963

GEORGIA'S POPULATION
1. Georgia's total population is expected to increase from 3,943,116 in 1960 to 5,479,000 (or more) in 1976, an increase of at least 39%0
2. The number of youths to be educated is expected to increase even more dramatically 0 From 1960 to 1975:
- Elementary school enrollments are expected to increase proportionately to the 37% increase in elementary school age populationo Most of this increase will come when a new population bulge starts through the elementary schools in the early 1970's,
- Secondary school enrollments are expected to increase proportionately to the 50% increase in high school age population and even more than this as the number of dropouts is reduced.
- The number of high school graduates is expected to double at least.
- College-age population is expected to increase 70% and college enrollments to increase over 100%0
3. Much of Georgia's population is concentrated in a few counties -- nearly 3/4ths in 1/4th the countieso
7 counties had populations of more than 100,000.
- 19 counties had populations of 30,000 to 100,000.
- 14 counties had populations of 20,000 to 30,0000
- 54 counties had populations of 10,000 to 20,000.
- 65 counties had populations of less than 10,000.
4. The trend is toward an even greater concentration of population in a few counties o Between 1950 and 1960:
- 28 counties gained population at a faster rate than the statewide growth of 14 05%0
- 39 counties gained less than the statewide rate. - 92 counties lost population o

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5. Georgia's people have received fewer years of schooling than people in most other states o Georgia's rank among the states is:
- 50th in holding power in the high school grades as measured by high school graduates in 1962 as a percent of 8th grade enrollment in 1957-580 (48.2% dropped out in Georgia; 7.7% dropped out in the highest ranking state -- Wisconsino)
- 42nd for median school years completed. (Georgia median was 9 00; highest ranking state, Utah, was 12 02 0)
- 47th for percentage of population with less than 5 years of schooling. (Georgia percentage was 17.6%; highest ranking state, Utah, was 2.8%.)
- 47th for percentage of population with less than 8 years of schoolingo (Georgia percentage was 40.2%; highest ranking state, Utah, was 8.9%.)
- 43rd in percent completing at least 4 years of high schoolo (Georgia had 3109%; highest ranking state, Utah, was 55 08%0)
- 40th in percent of those completing 4 years of college o (Georgia had 6.2%; highest ranking state, Colorado, had 10 07%.)
(Note: All preceding rankings except for holding power are based on population 25 years old and older in 1960.)
6. The percentage of college-age Georgians actually attending college is about one-half that in the nation (2107% for Georgia and 39.2% for the nation). If Georgia 9 s proportion had been as high as the nationus. Georgia's college enrollment in 1960 would have been 90,865 instead of only 50,220.

GEORGIA'S POPULATION

At the beginning of this century, Georgia had a
population of 2,216,333. Over the succeeding six decades, the population grew by 1,726,75, or approximately 78%, to a total in 1960 of 3,943,116. During this same period the population of the United States as a whole increased by 135.3%. The following table shows variations of growth by decade for both the state
and the nation.

Population Growth - Georgia and United States, 1900-1960

Georgia Increase United States Increase

Decade

Number Percent

Number

Percent

1900-1910 1910-1920
1920-1930 1930-1940 1940-1950 1950-1960

392,790 286,711
12,674 215,217
320,855 498,538

17.7% 11.0
0.4 7.4 10.3 14.5

16,016,328
13,793,041 17,181,087
8,901,9 45 19,221,229
27,997,377

21.0% 15.0 16.2
7.2 14.6
18.5

Source: University of Georgia, Bureau of Business Research, Georgia Statistical Abstract, 1963.

During the twentieth century, Georgia's population growth typically has lagged behind that of the nation by about 4.0%. The question of why GeorgiaVs growth lags naturally arises and is made more pertinent by the fact that in 1900 Georgia's population exceeded that of any neighboring state, yet by 1960 North Carolina's population was more than a half million and F10rida v s more than a million greater than Georgia's.
The major factors in population growth are high fertility and birth rates, low mortality rates, and net migration into the state from other states. GeorgiaVs fertility and birth rates have been higher than that of the nation and most of its neighboring states, while its

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mortality rate has been lower. Thus, from the standpoint of natural population growth its rates should have exceeded that of the nation and most other states. l
Throughout most of the twentieth century, however, Georgia has lost more of its population from migration to other states than it has gained from them. In the decade of the 1940's Georgia lost a net 2.4% of its white population and 22.2% of its non-white population through migration. In the 1950's its net loss through migratio~ was reduced to only 0.4% of whites and 19.2% of nonwhites.
Although the state is still a loser of population from net migration, the rate of loss has declined markedly. Should this continue, Georgia will become a net gainer of white population in the 1960's and the loss of nonwhites will come to a standstill over the next several decades.

Population - Future Growth

Projections of population trends of the 1940's and

1950's indicate growth at an increasing tempo. One pro-

jection foresees an increase from 1960 to 1970 of 762,891

people and for the following five years, 1970-1975, a

growth of 1,138,702. By this latter year the total popu-

lation would amount to 5,884,637, a 49.2% increase from

1960. It should be emphasized that this is a projection,

not a prediction, based on a continuation of 1950-60 fer-

tility, mortality and migration rates, county-by-county.3

Th& National Planning Association has made a separate

projection of population growth by states for the year

1976. Its 5,479,000,

estimate is indicating

a onl

somewhat more conservat y a 39.0% increase from

ive 1960.

4

1 U. S. Bureau of the Census, Statistical Abstract, 1962.
2 ill2..
3 J. Co Belcher, Georgia County Data Book.
4 National Planning Association, Regional Economic Projection Series, Report No.1.

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POPULRTION GROWTH GEORGIR
IctLfO-IQ75
PROJE[TIONS
5)88'+,637 5) l.f 7q" 000

Iq60
Scurc.e ~ U.S. [~()5US~ Bekhe.r) G~orqlQ
County D6.to- Book; No.t,ono./
P10..0 n, nq Rss oc. \O.t l 0 f\

'975

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Distribution of Population Within the State
Looking at the state as a whole. the heaviest concentration of population is located in the northern half bounded by a line extending roughly from Columbus in the west and running northeastward along the fall line through Macon and Augusta. Below this line both rural and urban populations tend to be much less dense.
The most rapidly growing counties tend to lie within and on the fringes of the Standard Metropolitan Statistical Areas whose central cities are Atlanta, Savannah, Macon, Augusta, Columbus and Albany.
Variation in population growth can be seen by comparing the statewide increase in population of 14.5% during the 1950'~ with~
- 28 counties which gained more than the state average.
- 39 counties which gained less than the state average.
- 92 counties which lost population.
The range of population change was:
- a 25.4% loss for one county.
- a 102.7% gain for another.
The tendency of the population to concentrate in a few counties is demonstrated by the fact that one-fourth of the counties (40) will soon contain three-fourths of the state's population. In 1960, one-fourth of the counties contained 69%, or 2,721,341, of the state's population. ~he following table provides additional indicaion of the distribution of population among the counties.

Population
More than 500,000 200,000 - 500,000 100,000 - 200,000
30,000 - 100,000 20,000 - 30,000 10,000 - 20,000 Less than 10,000

Number of Counties
1 1
5 19 14 54 65

1 Calculated from data: J. C. Belcher, Georgia County Data Book.

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Population by Race
Georgia's white population in 1960 was 2.817,223, while its non-white population was 1,125,893. The white population represented 71.4% of the total while the nonwhite population represented 28.6%. This is compared with a 1900 percentage of 53.3% for whites and 46.7% for nonwhites. The percentage increase in white population during the decade of the 1950's was 18.3%. During the same decade, the non-white population increased 5.8%. The actual number of nonwhites decreased slowly from 1910 through 1950 and then during the 1950's showed an increase of some 60,000. The white population has more than doubled since 1900.

White

Nonwhite

.Y....e..a..r..

Number

Percent Number

Percent

1900

1,181,294 53.3% 1,035,037 46.7%

1960

2,817,223 71.4

1,125.893 28.6

Source: University of Georgia, Bureau of Business Research, Georgia Statistical Abstract, 19630

Population by School Age Groups
Accompanying tables present graphically the changes in school age populations between 1950 and 1960 and the projected number for 1975. It should be noted that large increases in the high school age population (ages 14-17) and the college age population (ages 18-21) are foreseen in the period from 1960-1975. A new increase is expected to begin about 1970 in the pre-school age group (6 and under) and the elementary age group (ages 7-13). This increase is anticipated as new families are formed by the large number of children born in the years immediately following World War II.

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Educational Level of the Population
A widely-used measure of the educational level of a population is the years of schooling completed by persons twenty-five years old and older. Georgia's position and its relative rank among the fifty states in 1960 on such measures can be seen from the following table.

Selected Levels of Educational Attainment - Georgia and UoS. With Georgia's Ranking Among the States

U0 So Level

Georgia GeorgiaUs Level State Ranking

Median School Years Completed by Persons
25 Years Old and Older~

Total Population

10.6

42

White Population

10.9

39

Non-white Population

80 2

47

Percentage of Population 25 Years Old or Older With~

Less than 5 Years of

Schooling

47

Less than 8 Years of

Schooling

22.2

47

At Least 4 Years of

High School

31.9

43

At Least 4 Years of

College

707

6.2

40

High School Graduates

in 1962 as Percentage

of 8th Grade Enrollment

in 1957-58

70.6%

51.8%

50

Source: National Education Association, Rankings of the States.

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EDUCAT10NRL RTTRINMENT
- ELEMENTRRY LEVEL -
GEORGlA AN'] UN1TED STRTES

GE ORG'A

! UNITED

17.'%

5TATE5

18.37-

!

'j

,I

I

!,
,1,

'-_0'_-",

LESS THAN FJVE

YAR~ SCHOOLING

!.
I
I
II
I
LESS THRN EIGHT YEARS SCHOOUNG

Source: U.S. (en,us)~bO

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EDUCRTIONAL RTTAINMENT
H'GH S[HOOl~ [OLLEGE LEVEL
GEORGIA RI\'O UNlTEO STATES
1--'t/./%
31.9% I

AT LEAST FOUR
YEARS OF
HIGH SCHOOL

AT LEAST FOUR YEARS OF
[OLLEGE

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Another measure of education acquired is the propor-

tion of the population within age groupings actually en-

rolled in school at the comparable level o In 1960, 97.5%

of Georgians age 7-13 were enrolled in the elementary

schools; 8309% of those age 14-17 were enrolled in high

schools; only collegeo l

21 07%

of

college

age

youth

were

enrolled

in

The significance of Georgia's deficit in college enrollments can be seen by comparing Georgia's 21.7% of college age youth enrolled in college with the national
figure of 3902% and the Southern average of 28 07%0 Georgia's deficit was 7.2% when compared with the region and 18 07% when compared with the nation o

If Georgia accepts either the regional or national norm as a goal for the proportion of its population which
should be enrolled in college, the picture for 1960-61 would appear as follows: 2

Georgia's actual college enrollment, 1960-61
Georgia 9s percent of college age enrollment in college, 1960-61
Number of Georgians who would have been enrolled in 1960-6l~
On basis of regional norm of 28.7% On basis of national norm of 39 02%
"Under-educated" college age youth in Georgia: On basis of regional norm On basis of national norm

50,220
2107%
66,526 90,865
16,306 40,645

1 Georgia State Department of Education, Holding Power of Georgia Schools; and Southern Regional Education Board, Statistics for the Sixties.
2 Calculated from data in Southern Regional Education Board, Statistics for the Sixtieso

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In terms of the number of high school graduates per hundred 5th graders seven years earlier. another measure of educational attainment. Georgia falls well below the national level. As the chart on page 13 shows. while ~eorgia has made great strides toward closing this gap since 1953. the stateVs high schools grad~ated only 47 out of every hundred 5th graders seven years earlier in 1963. 17 less than the national average of 64 per hundred. If the national average had been matched. an additional 5.078 pupils would have been graduated.
Another measure of educational level is the number of persons within the state educated at the higher levels in scientific and technical fields. The National Science Foundation makes state-by-state inventories of such highly educated personnel and their most recent study. made in 1960. reveals that although Georgia had 2.2% of the nation's population it had only 1% (2.025) of the nation~s reservoir of scientifically and technically trained manpower. Had it had the same proportion as the nation. Georgia would have had a total of 4.424 such persons. Georgia could be described as suffering a deficit of 2.399 people with the competencies most critically needed for its economic. educational and social advancemento l
1 Calculated from data in National Science Foundation. American Science Manpower. 1960.

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HIGH SCHOOL bRROURTfS
PER lDOFIFTH GRRDERS 7YERRS EARLIER - GEORGIA RND UN1TEO STRTES -
''153-''163

lao

100

100

I
i
i
I I
I

I

58

I

I

!

I: '+7

I 38

ICJ52-Ict53 1"57-IGJ58
Scurc:.e: Sto.te DepO-r--tMent cIr Educ.o..tton

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PERCENT OF COLLEGE RGE IN COLLEGE
1960-IQbl

100% I

11.7%

l..fO bl.f 5 UnclQ.r-e..dvc.o.iQd

j

c.o \\e.qe Cl~e. Ge.~r-qIQns

50~2J.O EnroUeJ! In c-o\\e.qe ,n ~e.or-"\0.

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PERCENT OF HIGH SCHOOL GRADUATES ATTENDING COLIEGE 1960 WHITE
Under 2~ 22 31.9~
32 41.9~
42 51.9~
Over 51.9g;
No data ava11abJe
State average
1s 37.~

Sour.ce: Commission Study by Cameron Fincher

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PERCENT OF HIGH SCHOOL GRADUATES

ATTENDING COLLEGE - 1960

NEGRO

c:J
Iv'- "')1 :> : .~(;

Under 11% 1). 18.99%

[]J]J 19 26.99%

-~
IND'\I

27 34.99% Over 34.99% No data
available

Source: Commission Study by Cameron Fincher

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET. So W. ATLANTA 3~ GEORGIA
STAFF MEMORANDUM NO, 2 G E 0 R G I A'S E CON 0 M Y
SECOND DRAFT REVISED: NOVEMBER 1, 1963

GEORGIAWS ECONOMY

lo The total inc'ome of Georgians is expected to double between 1960 and 1976 0 However, GeorgiaWs per capita personal income is expected to remain substantially below the national levelo"

2.

While many jected at

elements of GeorgiaWs economy are faster growth rates than the United

proSta

t

es

W

rates, in most cases national levels will not be

equaled by 19750

3. Closing this anticipated gap between GeorgiaVs and
the nation's economic positions will depend on the
capital investment made ineducation o

4. In selecting industrial sites, the more sophisticated
industries will seek location. having research and graduate study opportunities as well as trained workers.

5. Most new jobs in 1975 will be in "high educational
requirement" categories -- few will be in agricultural and unskilled categories -- and projection of current trends indicates Georgia will not be training enough
skilled people to fill these "available" jobs o

6. Unless Georgia develops an adequate manpower reservoir,
loss of income may be expected due to high unemployment of the undereducated and many unfilled jobs requiring skilled and trained personnel o
7. This shifting nature of job requirements will create
demand for educational changes in training -- and retraining -- youths and adults o

GEORGIAVS ECONOMY
GeorgiaQs economic health will both shape its total educational facilities and be shaped by them o For" while the availability of resources -- population. natural resources. and industrial capacity == will playa role in the economic growth of the State" the mobilization of these will depend upon the ingenuity skills and training -- education -- available in tomorrowus dynamic and technological society.
Indicators of Growth
Three major economic signposts for viewing GeorgiaVs economic development are output of-goods and servicesf) employment~ and income. All three of these barometers are expected to show continued and expanded growth.
The output of goods and services. as projected on the following chart will increase from approximately 7 billion dollars in 1957 to 17 billion dollars in 1976 0 Georgia 9 s percentage of the United StatesO gross national product will continue to increase during this period. indicating GeorgiaVs rate of growth will continue to exceed that of the nation o

Output of Goods and Services in Georgia (Millions of 1960 Dollars)

1947

I :jiLl "bLW
million

1957

$7~30b
million

I

1976

$1(9 U1j
million

I

Sourceg National Planning Association$) Regional Economic Projection Seriesf) 1962 j S=330

Percentage of United States Gross Product Originating in Georgia

1947

1957

1976

Georgia

1.50%

1057%

1.69%

Southeast

15.08

15 0 63

16.38

Source~ National Planning Association~ Regional Economic Projection Series~ 1962~ p. S=330

Annual Growth Rate of Output

Georgia United States Southeast

1947-1957
4.6%
4.2
4,6

1957=,1976
4.5%
40 1

----,---------,-----------~"""""'~~~~-
Studies made by the National Planning Association~ the Georgia Department of Labor~ the University of Georgia~ the Georgia Institute of TechnologY9 and other agencies indicate that employment in Georgia will increase rapidly. The National Planning Association projects that total civilian employment in Georgia will move from 1~309~300 in 1960 to li817~500 in 1976. These 508 j 200 additional jobs represent an approximate 39% increase by 1976 9 although the ratio of the number of people employed to total population will remain constant at 33%. Other groups project even greater increases in employment.

-3-
OUTPUT RND PERSONRl iNCOME GEORGIR
tCft.t7 -1976
(, '160 dollQrs)

15
16
Pt
12
10
OUTPUT
1

/ / /

r
INCOME
2

191f7

1957

Source: NQ.tloraai PIQonlnq ASSOC'Q.t\Or'\1 ~ EconomlS Pri.\fc""'ons 5e.Clei~ 1961

-~ -
Income projections in 1960 dollars also show a healthy gain. As seen below, total personal income in Georgia is expected to increase at a faster rate than total U. S. personal income, doubling between 1960 and 1976. Per capita income, however, will remain well below the national level, and will fall below the regional level, as it is not projected to grow at as high an annual rate as will be true for the nation as a whole or most of our neighboring southeastern states. This lower rate is anticipated because Georgia's average compensation per employee, per capita property income, transfer payments, and percentage of population in the labor force are very low.

Total personal income* Georgia (~.5%) United States (~.~%) Southeast (~.7%)

-1960

1976

$ 6,357 $ 12,890 396,~85 796,600 62,196 129,329

Percent Change
103% 101 108

Income per capita

Georgia (2.~%)

1,610

2,353

~6

United States (2.6%)

2,213

3,326

50

Southeast (2.9%)

1,600

2,537

58

*

In millions of dollars.

()

Percentages in parentheses are annual rates of

growth, 1960-1976, in constant dollars.

Source: National Planning Association, Ope Cit., p. 2 and
p. S-~.

The lower per capita income in Georgia as compared to
the nation's level indicates that Georgia might still be considered an "underdeveloped" state. Such

- 5-

according to economic experts j is not poverty of natural resources, but the underdevelopment of its human resources for economic productivity is inextricably dependent on the investment in education.

Parents traditionally have accepted the concept of sacrificing consumption in favor of investing in the education of their children o The country as a whole also may view the education of its people as a capital investment in human resources o For it is estimated that about one-half of the growth of output in the United States during the past 50 years has been due to input factors other than physical capital investment or the increase in manhours workedo What has been the unaccounted for input factor spurting economic growth? Economists point to education as this elusive factor responsible for one-fourth to one-half of our nation~s economic growth o

Fortunately the projected rate of growth of our

state~s economy indicates that it can sustain a substan-

t I

ia n

l 1

inv 961-

est 62

ment tota

l

i

n s

t

peo ate

pl a

e n

d

or lo

"ed cal

ucation expend

for itur

e

d s

ev 1

elop for

ment publ

o
i

"
c

schools and colleges were 3 0 8% of total personal income o

This 3 0 8% applied to projected Georgia personal income

in ed

1976 9 ucation

prod of

uces total sta
$489~820~OOO~

te or

and local expenditures for an increase of 95% over

1961-62 expenditures 0 This increase is based on the

assumption that the same share of Georgiaqs total personal

income will be spent for education in 1976 as in 1961-62 0

The Changing Character of Georgia~s Economl
Within GeorgiaVs rapidly growing economy enormous and sometimes bewildering changes are envisioned o For example~ helpwanted ads will seek technicians and analysts instead of laborers and clerks~ and the composition of goods and services produced will alter as the exotic synthetics p sophisticated computers and electronic apparatus of todayi s industrial revolution are further adapted for use.

1 These are expenditures for current operations onlyp not
including federal funds 0 State Department of Education and Annual Report p University System of Georgia~ 1961-62 0

- 6-
Even more basic, however, will be the shifting importance of industries in GeorgiaWs economy.
Within any nation, region or state, economic development moves from initial concentration in the production of basic necessities (agriculture) to the production of commodities (manufacturing, mining and construction) and finally to the expanded provision of services (trade, transportation, etc.).
United States economic history substantiates this pattern. The long-run trend has been for a diminishing role of agriculture, a gradually stabilizing commodity sector and, most recently, the expanding of the complex world of services which entail the highest composition of skills and technologyo
As the following percentage distribution~~loy ment inc_these three economic sectors for selected years reveals, Georgia. while a late starter, is travelling the same course as the nationg

Agriculture Commodities Services

21.97% 9.30% 26.66 29.19 51.77 61.50

64.52

ill2
40 86%
29.46 65.67

The Decline of Agriculture
Agricultural employment has been declining not only as a percentage of total employment, as shown in the preceding table, but also in actual figures. The loss of jobs annually in agriculture has been estimated at 16,000 between 1940 and 1950, 9JOOO between 1950 and 1960~ and 5.000 between 1960 and 1970. 1

1 Georgia Department of Labor J Georgia Employment Trends.

- 7-
The actual declines -- and projected further drops -in the percentage of total Georgia output originating from agriculture and the value of the state's agricultural output also reveal the lessening importance of agriculture to our economy:

Percentage of Total Georgia Output Originating from Agriculture

1947 13,,3%

illl
5.9%

Agricultural Output in Georgia
Millions of Dollars (1960 Dollars)

1947

1957

1976

$613

$431

$424

Source: National Planning Association, Op" Cit", p" 8-38, S-44.

From an educational standpoint 9 this shrinkage of farm employment and output poses a dual problem" First, the youths who stay on the farms will need more specialized. train:i.ngto. deal with the increaseacomp1:ex1-t1:esof mechanized and scientific agriculture" Second 9 those youths who inevitably must leave the farms to seek employment in the cities will need the education and training to qualify for employment in those occupations and industries which will expand in the next decade"
The Growth of Non-Agricultural Employmeni
The major factor offsetting the decline of agriculture in Georgia has been the growth of the manufacturing and construction and 9 more recentlY9 service industries. These sectorsij continued growth, which depends mainly on

- 8-
the availability of manpower with skills commensurate to their needs, is vital to the economic and social well-being of the state.
U. S. Census figures show an increase of 10 04% in total employment in Georgia, from 1J254~302 to 19385$047 between 1950 and 1960. However, according to Norman Jo Wood of the University of Georgia~ the net gain of total employment in Georgia from 1950 to 1960 was only 8 03%, although the increase in nonagricultural employment alone was 25.9%.

Nonagricultural Employment in Georgia, 1950, 1960 and 1975

Percent

Gain

ill.2.

1960

ill2. 1960-1975

Manufacuring,
Mining and Construction

331,000 398,500 554 J 300

3901%

Service Industries*

652,700 839,600 l,235 11 50 0

47 02

Total Nonagricultural

983,700 1 11 238 J 100 1,189,800

44.6

*

"Service-producing" industries; ioe o trade; transportation, communications and public utilities;

finance, insurance and real estate; personal and

business services; domestic services; government;

and proprietors, self-employed and unpaid nonagri-

cultUral family 0

Source: Norman J. Wood, The Growth of the Service Industries in Georgia, and unpublished data, Bureau of Business Research~ University of Georgiao

The increase of non-agricultural employment between 1960 and 1975 has been estimated at 44 0 6%0 Taken as a unit. the manUfacturing, mining and construction sectors are expected to continue prOViding additional emp1oyment$ via a 39 0 1% gain by 19750 The anticipated gain for the service industries is
even greater -- 47 0 2%0

PERCENT CHANGE IN PROJECTED GEORGIA EMPLOYMENT 1960-1975
BY OCCUPATIONAL CATEGORIES

Professional & Technical Managers & Officials
Clerical Sales Craftsmen

-30 -20 -'0 o
These occupations will comprise 40% of available employment in 1975. They require at least a high school diploma. The present median education level in Georgia is 9 years.

10 20 30 IiO SO bO 70 80
'"

Service Operatives (Semi-skilled) Laborers Farmers-Farm Workers Source: Bureau of 'Business Research, University of Georgia
Occupational Trends in Geor~ia, April, 1963.

- 10 -
The national tendency to spend a higher portion of income on services -- for example~ trade and government -is responsible for the recent and projected growth of this sector o And j as technological improvements further increase commodity output and free labor~ the added leisure time~ combined with projected higher per capita income~ will intensify man's desire for noncommodities such as services.
The fastest growing service industries in Georgia have been government and finance~ insurance and real estateo The complexity of modern economy should reinforce these growth patterns in finance and insurance and growing population demands will have a similar effect on real estate. Almost 80% of the rise in government employment has been in state and local government~ reflecting particularly the increased numbers employed in education. Maintenance and repair of electric and electronic equipment is a third service industry which will become increasingly important.
The Need for Trained Workers
The industrial "mix" for Georgia in the 1970 i s will provide fewer jobs for the unskilled and semi-skilledo This is true not only because machines are and will continue to replace these production workers~ but also because the very industries using the least trained people are on the decline in favor of growing industries which seek skilled employees. Agriculture~ textile mills and sawmills are giving way to machinery~ electronics j printing 9 finance and insurance~ and fabricated metalso
The trend in the industrial "mix" requiring a more skilled labor force is even more readily apparent when one views occupational trends and future needs o The type of work the average Georgian will be called upon to perform will more likely be professional, technical or clerical than semi-skilled operative or laboringo In effect the projected employment rates of the 1970's will depend upon a labor force with higher educational standards o

- 11 -

Percentage Distribution of Georgia Employment by Occupational Categories

ill.Q.

1960

12l.2.

Professional and Technical
Managers, Officials and Non-farm Proprietors
Clerical
Sales
Craftsmen
Private Household Workers
Service (Except Household)
Operatives (Semiskilled)
Laborers

6.3%
7.2
8.7 6.1 10.4
6.0
6.4
20.1 7.6

8.8%
8.6 12.1
6.9 12.1
6.6
8.0
22.1 6.4

13.2 8.8 7.0
12.4

= 40% of available employment

N.A. *

14.8

19.9 4.7

Farm - Farm Workers

8.4

4.0

Farmers and Farm

Managers

12.8

4.4

4.5 N.A.*

*
Source~

N.A. = Not available
Norman J. Wood and Larry Pinson~ Bureau of Business Research, University of Georgia.

Projections derived from present trends in Georgia indicate 40% of the labor force, or 750,000 people, will be needed in the first four occupational categories listed above by
1975. As only 500~000 people were included in these categories in the 1960 occupational "miX". an addition to the labor force of 250,000 people, at least half of whom must have the equivalent of a high school education or more will be needed during the 15-year period. This figure does not include those needed for replacement of present employees.

- 12 -
In comparison to Georgia~ the United States overall 1975 occupational distribution places about 48% of the labor force in the first four categories ol Georgia will approach this, exceeding her 40% projected figure~ only if she succeeds in attracting higher paying industries. particularly by having skilled manpower available~ at a faster rate than in the pasto
A bootstrap operation to acquire more and "better" industry, research and development to promote imaginative products. and the trained manpower to participate in this bootstrap operation~ it has been predicted~ could combine to add another 150 j OOO jobs in these higher paying four categories o If Georgiaffs 1975 occupational distribution matched that of the nation as a whole j 1975 would see Georgia with 900 j OOO jobs available in the top four categories instead of the presently projected 750 j OOO jobs o To the extent that such an operation would be supported with all the facilities at the state~s disposal, not only employment availability in these top four categories would be improved j but also total employment~ output~ personal income and per capita income would be raised over and beyond the projections that current trends have indicated heretofore.
Unfilled Jobs of the Future
The crucial need for skilled and technical manpower was analyzed recently by the Georgia Department of Labor in GeOr~ia Skill Study, In a survey of the anticipated needs 0 Georgia*s employers for manpower with specified occupational skills~ during the period 1962-1967~ a probable deficit of trained workers was revealed which is startlingo
Employers indicated that by 1967 a total of 14~954 new technical jobs would be open~ but the supply from company training programs and educational institutions will provide only lO~926 technicians during the same five year period o For Skilled classifications the survey shows a total employer need for 27~205 additional workers by 1967, and a new supply of 20~07l skilled workerso For both
1 Kenneth Wagner~ Industrial Development Division~ Georgia Institute of Technology.

- 13 -
NE\I JOBS BUT NOT ENDUriH TRA INfO 'WORKERS
N@w Sk,\led. ar4 Te('.h... ,~Q..\ Jobs In rQ6'7
Qnd
Ad-clltt enol Trtll.l"ed. 'Wcrke"-$

II,DODGhost JobsNo 9ual,f,ec! ~ka..s!
GHOST JOBS?

Scurc~: bear ~'(1 De.p(U"tment of Lobor,
Geo\"'~. <4 5 K!J' 5t~g~~, Iq6 3.

: ';000 New JObs

- 14 =
these broad categories -- technicians and skilled workers -there will be an approximate deficit of 25% in each category by 1967, or a total of over 11~000 unfilled jobso
An encouraging trend revealed by the GeOr,ia Skill Study is that the deficit of trained personnein the two categories discussed above will decline between 1962 and 19670 This decline in deficit can be attributed partly to the programmed expansion of the vocational-technical schools throughout Georgiao However, any deficit in these two categories would be particularly unfortunate because in a rapidly changing technological economy the availability of technicians and skilled workers will be of increasing importance in holding and attracting industry to the state o
The accompanying table shows a 1975 demand in Georgia for 205,000 people in the professional and technical occupational category, with 16 0 2 median years of education, or the equivalent of at least a college degree o If the projected 1975 national percentage distribution in occupational categorIes Is applied to Georgiags projected total employment j demand for professional and technical employees would reach 267 9 000 0 On the supply side it is important to reach some estimate as to the number of available college graduates for 1975 to fill these positions o Two estimates are giveng one is calculated on the basis of the 1960 percentage of Georgia population 25 or over that has four or more years of college, and the other is based on the 1960 percentage of the United States population 25 or over that has four or more years of college o

- 15 -

OCCUPATIONAL NEEDS IN GEORGIA IN 1975 BY MEDIAN YEARS OF EDUCATION

Employment in
Selected Occupations (in 1,000's of Workers)

Median Years of Education as of 1960

Professional and Technical
Managers. Officials and Non-farm Proprietors
Clerical
Sales
Craftsmen
Service
Operatives (semiskilled)
Laborers
Farmers - Farm Workers
Not Reported
TOTAL***

166 0 6 248.5 132.5 233.6
280 0 3
375.6 88.7
85.6 65 0 0 1.881. 3

12.5 12.5 12.5 11.2 10.8
10.1 8.9
8.8* 8.5**

***
***
Source:

Farmers and Farm Managers Farm Laborers and Foremen Because of different projection procedures~ this total employment projection differs from the NDA estimate given on Page 2.
Norman J. Wood and Larry Pinson~ Bureau of Business Research, University of Georgia,

- 16 -

--------Su~pp-ly-a-nd-D-e-ma-nd-f-or-P-r-of-es-si-on-al--------
and Technical Occupations in Georgia

Projections for Georgia based on
Georgia occupational distribution.

Projections for Georgia based on
U. S.
occupational distributionso

Estimate on

Estimate on

basis of 1960 basis of 1960

percentage of percentage of

Georgia popula- U. S. popula-

tion 25 years tion with 4

and over with or more years

4 or more years of college

of college

(707% L

(6 0 2%).

205,000

267,000

187,000

232,000

\r-------..- Supply Deficit

" - _ - - - - ~ Supply Deficit l /

of 18,000

of 35,000

*Estimates obtained by multiplying the indicated percentages
by 1975 Georgia population age 25 or over. (Population estimates from the Georgia County Data Book.) Therefore~ estimate includes those over 65 who would be retired.

A comparison of the projections based upon Georgia occupational supply and demand trends (Columns 1 and 3) indicates a supply deficit of 18,000 trained people. A comparison of the projections which utilize national occupational supply and demand trends (Columns 2 and 4) indicates a supply deficit
of 35,000 trained people.

Education and Earning Capacity
The most direct measurement of the value of an education to an individual is the return in average earning capacity. As the next chart illustrates, the average lifetime income of the male college graduate in 1961 was $137pOOO more than the average lifetime income of a male high school graduate p and $329,000 more than the average lifetime earnings of males who completed only eight years of schooling.

- 17 -
LIFETIME ERRNINGS FOR MEN
25 -6Lf- YEARS OLD BY RMOUNT OF S[HOOLING

YERR5DF
W1.BIIThI
Less thQ.n
8 Ye.Q..f"'Jj
8 Yeo. r-s
o I +0 1 j Ye.o..r-s
(,J
(f)
:r.~a- '-t Ye~ rs
I +0
--~ ~ 'fe.o.rs
<It
uo Lt Yeo..rs

21~OOO
~61~OOO
f
J

- 18 -
Similarly the lack of skills and training is reflected in unemployment rates. Such rates are almost twice as high for people having less than a high school diploma as they are for high school graduates. Moreover~ unemployment rates for high school graduates are almost twice what they are for individuals with some college training ol
General Education and the Economy
The desires of people as consumers are important to the economy. although less tangibly than jobs and products. because they cause the types of goods produced and jobs available to be alteredo General education raises the cultural level~ which is reflected in peoplegs desires~ and makes the state a better place to live for both the native born and those people and industries attracted to it by increased educational and cultural activit Yo
Further. industries looking for plant locations consider the quality of elementary and secondary schools important. Their employees want good schools for their children a factor in recruitment of personnel~ particularly at the upper levels.
Automation and reduction of work week length are trends of the economy also to which education should be related. People must have sufficient education to enable them to use successfully the increasing amounts of leisure time accompanying these trends.
Workers at all levels are increasingly expected to follow complex instructions~ to make reports -- to educate and adapt themselves to change 0 Graduates j well grounded in general education j from strong school systems are much more quickly and efficiently able to accomplish this training and retraining than those who are weak in the fundamentals of reading~ mathematics and in social values o The importance of good general education for all workers goes beyond specific work skills -- it is and will become even more a necessity for modern liVing and adjusting and a base for future progress.
1 U. S. Department of Labor. Manpower Challenge of the 1960~s.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, So Wo
ATLANTA 3, GEORGIA
STAFF MEMORANDUM NO. 3 G E 0 R G I A'S PRE SEN T E D U CAT ION A L S Y S T E M
SECOND DRAFT REVISED~ NOVEMBER 1, 1963

GEORGIA'S PRESENT EDUCATIONAL SYSTEM
ELEMENTARY AND SECONDARY SCHOOLS
1. During the last ten years Georgia's public elementary and secondary school enrollment has increased by a quarter-million pupils -- an even greater increase will occur during the next decade.
2. About two-thirds of the systems and three-fourths of the high schools are too small to meet standards for adequate programs and efficiency.
3. Georgia's average teacher's salary is considerably l~ss than that of many skilled trades and of some neighboring states' averages for teachers.
4. Despite rapid progress in raising teacher qualifications, in 1962-63, 2,659 Georgia teachers did not have college degrees and an additional 1,322 held degrees but were not fully prepared for teaching.
5. Teachers' salaries and expenditures per pupil vary greatly among systems, indicating variation in quality and efficiency.
6. Despite progress resulting from the Minimum Foundation Program for Education, there are evidences of inequities in distribution of funds and inadequacy of support.
7. Data on dropouts, draft rejections, college entrance
rejections, freshman failures, and low scores on rea~ ing tests attest to the lack of success of Georgia's school programs in educating adequately.
8. Georgia ranks 46th in average pupil-teacher ratio at
about 1 to 29, many schools having classes with more than 40 pupils. On the other hand, there are also many classes with less than 10 pupils.

- 2-
9. Despite the tremendous building program. Georgia had
some 80.000 students in excess of available standard classroom space in 1962.
10. In 1963. 39 school systems reported no instructional supervisor and 27 reported no visiting teacher. Several others share the services of these leadership personnel -- sometimes one person to 2-4 systems.
11. Data on Negro schools show considerably higher dropout rates. lower average daily attendance. fewer graduates proportionately. and lower achievement levels than do data on white schools. A high proportion of the smallest schools are for Negroes.
12. Many of Georgia's constitutional and statutory provisions for education date back to horse and buggy days and are criticized by administrators as detrimental to efficiency and progress.
HIGHER EDUCATION
1. University System fall enrollment grew from 22.122 in 1953 to an estimated 41.000 for 1963. an increase of about 19.000 students and a percentage growth of 84.5%.
2. Enrollment in private colleges in Georgia grew from 11.879 in 1953 to an estimated 19.000 in 1963. an
increase of approximately 7j OOO students and a per-
centage growth close to 60%.
3. Conservative projections of enrollment growth indicate
an even more rapid increase in the next few years as the "post-war baby bulge" moves into college. Colleg~ attendance in the University System will more than double by 1975 to an estimated total of 85.000 students.

- 3-
4. This enrollment growth will be much greater if per-
sonal income continues to increase in all segments of the population, if more opportunities for college attendance are provided by expanding existing institutions and establishing additional community junior colleges, and if holding power of the schools is improved all along the line.
5. Recruiting and holding an adequate number of quali-
fied faculty members will be one of the most critical problems facing our colleges. Professional staffs
will at least double by 1975. Nationwide competition
of colleges for faculty members will be vastly intensified by increasing government and industry need for such personnel.
6. Meeting this demand for such highly educated people will require that priority be given to expanding graduate programs of high quality and to recruiting our best graduates for these programs.
7. Programs of research, service, extension, and adult
education will expand at an increasing tempo as intensified needs make themselves felt through increased demands from government, industry, civic groups and the general public.
8. Better qualified teachers, new and better instruc-
tional procedures, material and equipment, expanded library resources, and adequate supporting services will be needed to improve the quality of higher education.
9. College physical plants must keep pace with increased enrollments and expanded programs. Plant development programs must begin with planning for efficient utilization of existing facilities.

GEORGIA'S PRESENT EDUCATIONAL SYSTEM
ELEMENTARY AND SECONDARY SCHOOLS
The basis for the public schools in Georgia is in the State Constitution which states that "the provision of an adequate education shall be a primary obligation of the State of Georgia, the expense of which shall be provided for by taxation." (Code Section 2-6401)
State Board of Education
The Constitution further provides for a State Board of Education which is responsible for public education. The Board is comprised of ten members, one from each congressional district, appointed by the Governor with the advice and consent of the Senate. Meeting monthly, they serve seven-year staggered terms. Board duties include the setting of policies within constitutional and statutory limits and the hearing of appeals from local districts.
State Superintendent of Schools
The Superintendent is a constitutional officer elected by the people for a four-year term. He is charged with the administration of State Board policies and is their executive officer. He directs the work of the State Department of Education and supervises and assists in the administration of the elementary and secondary schools plus certain special schools and programs. An organizational chart of the Department appears on the following page.
Local School Boards
Much of the business of operating the schools in Georgia is delegated to the local school systems. The
Constitution provides that each of the 159 counties com-
prises a school district and also authorizes the continued operation of those independent school districts in existence at the time the Constitution was ratified. There
are now 38 independent systems. County boards of educa-
tion consist of five members appointed by the Grand Jury

ORGANIZATIONAL CHART - STATE DEPARTMENT OF EDUCATION

State Board of Education
I
State Superintendent of Schools

Assistant Superintendent (Administration and Fiscal Affairs)

Assistant Superintendent (Instruction and Educational Programs)

I

I

Administration and Fi,nance

Instruction I

(Minimum Foundation Curriculum

Program of Education)

Guidance and

Allotments and

Testing

Payments

Exceptional

Transportation

Children

Visiting Teacher Service

Teacher Education

School Plant Federal Relations Statistical Service IBM

Teacher Certification Educational TV
,

Coordinating Committee
I
Instructional Materials
I
Textbooks

I Vocational EducaI tion
Agriculture

School Libraries
Public Libraries
Library for the Blind
Audio-Visual Aids

Homemaking
Trade and Industrial Education
Distributive Education
Business Education

Surplus Properties

I Vocational Rehabi,litation
Sere Disability Determination
Georgia School for the Deaf
I\)
Ge orgia Academy for the Blind

Field Services

Negro Education

School Lunch Commodities
(Field Services and Negro Education Work With All Divisions)

Source: State Department of Education

- 3-
for f~ve-year terms except in counties in which this method of selection has been changed by local legisla~ tion. The school board in each independent system ~s governed by the system's charter and they vary both in the number of board members and the way in which they are selected. In a few cases the board is selfperpetuating, and in others board members are elected by the people or appointed in various ways.
Board membership is usually regarded as a public service. A nominal sum is sometimes paid to partially cover expenses. This may not exceed $10.00 per day. The local board has authority to:
- reorganize or consolidate schools;
- buy school sites, build schoolhouses, contract for goods and services;
- hire personnel (on recommendation of superin-
tendent; they may, by vote of 4 out of 5, over-
rule him, but rarely do);
- set attendance areas, transportation;
- determine school policies, approve bUdgets, set salaries within state framework (they may pay more, cannot pay less, than the state salary schedule);
- administer the Compulsory Attendance Law;
- buy, rent, maintain school property;
- contract with other systems for the education of children;
- recommend rate of school taxation to tax authority;
- adopt course of study;
- approve textbooks (this they usually leave to professionals);
- hear local school controversies.

- 4-
Local Superintendents of Schools and Local Districts
The county school superintendent is the executive officer of the county school board. He is elected by the people for a four-year term of office unless local action has been taken to make the office appointive. All of the independent systems and 23 of the 159 county systems have superintendents who are appointed by the local boards of education. The other 136 county systems elect their school superintendents.
Local Systems and Schools
During the school year 1962-63, the Georgia public school system operated 1,929 schools in 197 school systems. l Since 1952-53 the number of schools decreased from 3,113 -- from 1,497 white schools to 1,375 -- and from 1,616 to 554 for Negroes. During this ten-year period the enrollment increased from 779,303 to 1,026,857 and the average daily attendance (ADA) from 671,016 to 897,847.
During this decade also the proportion of schools with 1-5 teachers decreased from more than 50% to less than 10% of the total, and schools with 20 or more teachers increased from 13% to 40%.
Despite this record of growth and consolidation, as of 1962-63, the state still had in its 197 public school systems~
- 119 systems with less than 2,000 white children in ADA -- these systems account for more than 20% of white ADA.
- 154 systems with less than 2,000 Negro children in ADA -- representing 47% of Negro ADA.
These small systems are below the minimum standard of 2,000 pupils per system recognized by eminent national authorities as necessary for efficient operation and an
1 Unless otherwise indicated, statistical data in this section was provided by Statistical Services, Georgia State Department of Education, or taken from publications of the Department.

GEORGIR SCHOOL SYSTEMS
CLASSIFIED BY RVERAGE DAILY ATTENDRNCE

5YSTEMS \tilTH
RDR UNDER 1000 I

55
' : : ::1 96

: , - -. '~~:I-... .~--.

~.~.;~'"":> . '" '-' ~ ,- ..-.'

._

.

,,~~;~f:;"

I SYSTEMS WITH
ROA 1000-1999

~ b4

V1

58

SYSTEMS 'w'ITH

\~~"~,.~.'.;.-...=.:~_.;.....,.;.o~.~.,~J ROR 2000+ OVER

"'.' " t~~/Fl"" t.,,,:-.-~,- _;4,:_' ," " :.' ... ~>::_.

~~ ~ ,'At<. _ - __ . .,."

c" ."

--.'-~

,

."..

'. ,- ...;...

.:;-;"'.--

Source: StQ.ta De.po.r-+Me.nt of Eclvc.o.t\on

78 27
1 IWhite J r Ne9io

-6-
PERCENT DF5TUDENTS IN SYSTEMS WITH RDR LESS THAN 2000 tq62 -lqb3
47%

20%

PWUHPItTLES

NEGRO PUPILS

Source ~ State Oepo.r+itlQnt
of Educatton

- 7-
adequate staff and program of studies. Attendance by
system size is shown on Page 5. Several systems have
less than 200 white pupils in average daily attendance. and a few have less than 10 Negroes in average daily attendance.
A similar national standard sets 100 as the minimum graduating class for a high school. In Georgia high schools for 1962-63 the picture is as follows:
of 338 white high schools
103 had a senior class of more than 100. 235 had a senior class of 100 or less;
of 180 Negro high schools
21 had a senior class of more than 100. 159 had a senior class of 100 or less.
This preponderance of small high schools is. of course. associated generally with the small school systems.
Below-standard size high schools enroll 44% of the white
pupils. Moreover. 65% of Negro pupils were enrolled in these small schools. Many of these schools are too small to be accredited by regional associations. The effect of this is that graduates are not eligible for enrollment in most colleges.
Teacher Supply and Demand l
Georgia's 18 white colleges with teacher education programs in 1963 graduated 572 elementary and 978 high school teachers for a total of 1.578. This was exactly 200 more than the previous year. Georgia's 8 Negro col~ leges with teacher education programs graduated 228
elementary teachers and 499 high school teachers for a
total of 728. This was 196 more than the previous year.
A recent questionnaire from 179 of 197 school systems showed that as of the day the students reported for school in September 1963. there were many classrooms for which there were pupils but no teachers. There were 191 vacancies
1 Teacher Certification Services, State Department of Education.

-8-
SIZE OF SENIOR CLASSES BY RACE, 1962-63

Of 338 White Senior Classes:

Of 180 Negro Senior Classes:

21

25

26-100

pupils pupils

or less



Fall below Conant's recommended minimum

Source: Statistical Services State Department of Education

Over 100 pupils

-9-
PERCENT OF HIGH SCHOOL STUDENTS
IN HIGH SCHOOLS WITH SENIOR [LR5SES OF LESS THRN 100
65%
WHITE
PUPILS

- 10 -

for elementary teachers, the greatest shortage area. High school vacancies by subject matter areas were as
follows:

Mathematics

34

English

20

Business Education

10

Science

17

Industrial Arts

8

Guidance Counselor

10

Vacancies in other areas completed a total of 141.

Some universities and colleges are preparing
teachers in inverse proportion to the need of 9 elementary
teachers to 6 high school teachers. Our colleges are graduating 9 high school teachers for every 6 elementary
school teachers.

Status and Certification of Teachers
There were 36,507 teachers, principals, librarians and counselors in the public schools for the school term 1962-63. Of this group, 92.7% were certificated at four or more years' college, a slight increase over the previous year.

Teacher Certification Levels Georgia, 1962-63

Level by
Years of College

Number of Teachers Certificated

Increase or Decrease from
1961-62

6

371

+171

5

6,413

+158

4

27,064

+1,292

3

1,996

-274

2

484

-152

Less than 2

179

+2

- 11 -
AVERAGE ANNUAL SALARIES OF GEORGIA TEACHERS AND SELECTED OCCUPATIONS
-1963-

$10,000

$8,000

$6,000

$4.000

C/J

C/J

0::

CI)

I:z.1

I:z.1

0:::

CI)

H

tI)

0::

I:z.1

::t:

e..:>

$2,000

<

I:z.1

8

>t

I:z.1 8

...:I

Z

~
0:::

<0::

I:z.1

8

~
e..:>

I:z.1

...:I

I:z.1

ll..

1:z.1e..:>

0::

H 0:: CO

0::
e..:>

:...:zI Dz

e..:> I:z.1
CI)



<

<

H
<8



HD
0::
0
D~

8 Z < ...:l
8

:8c::
...:I

E-tZ Z::> <0 ...:Ie..:>

8
Z<
...:I

8
<

8e..:>

~

Source: U. S. Department of Labor,
Bureau 0f Labor Statistics, Atlanta and Georgia Department 01 Education.

- 12 -
During the year 1962-63. the teacher certification
office issued 1.322. B-4. (4-year college) provisional
certificates. These are for persons who have degrees but are not fully prepared for teaching. Of these teachers with provisional certificates. only about 25% will stay in the teaching profession. The remaining group will drop out. many after only one year. A comparison of salary levels with other occupations is given on Page II.
Minimum Foundation Program for Education (MFPE)
Georgia's Minimum Foundation Program for Education is a plan to provide a minimum level of education for all children in Georgia regardless of the wealth of the area in which they live. The state collects the money necessary to finance this level (the three cents sales tax was passed for this purpose) and redistributes it to the local school systems according to their needs.
Foundation programs are common among the states; Georgia's Minimum Foundation Program for Education is unusual only in the amount it provides in state funds as compared to local funds. Georgia ranked sixth among the states in the proportion of pUblic school funds obtained from the state level in 1962-63. 1
The Minimum Foundation Program for Education state appropriation includes funds for minimum salaries of teachers and other staff (see Page 14). maintenance and operation of existing facilities. pupil transportation. textbooks and other essentials. Each system's share of MFPE depends primarily on average daily attendance.
Teachers are allotted on the basis of one for a certain number of pupils in average daily attendance -the number varies with the population density of the system. as does the allotment for pupil transportation. The high density areas get fewer teachers for any given number of pupils.
1 National Education Association. Rankings of the States. 1963.

[URRENTEXPENOITURES PER PUPIL
- 19lf9-50 AND 1959 -bD

(jq59 - 60 P,.. Ices)

o IQY9-50

.,95i-60

$3Y-1

$')Jg

$250 t 1.78, $279 i f-J VJ

III

$192

$\59

$153

GEORGIA SOUTH [AROLINA FLlJR1DR

UNITED STATES

Source: NER" F,na.ncln~-the. Pub\lc 5c.hcc\s) IQ60-70

GEORGIA TEACHERS' SALARY SCHEDULE FOR 1963-64 ANNUAL SALARY BASED ON 10 MONTHS WORK

Type of Certificate

Yrs. of College Beginning Beginning Beginning Beginning Beginning Beginning Training 1st Yr. 2nd Yr. 3rd Yr. 4th Yr. 7th Yr. lOth Yr.

Professional

6

$

$

$

$5,300 $5,550 $5,800

Professional

5

Provisional

5

4,000 3,900

4,050 3,900

4,150 3,900

4,300 3,900

4,550 3,900

4,800 3,900

Professional

4

3,700

3,750

3,800

3,900

It,150

4,ItOO

Provisional

4

3,600

3,600

3,600

3,600

3,600

3,600

......

~

Professional

3

3,200

3,250

3,350

3,500

3,650

3,800

Provisional

3

3,000

3,000

3,000

3,000

3,000

3,000

Professional

2

Provisional

2

3,000 2,800

3,050 2,800

3,100 2,800

3,300 2,800

3,350 2,800

3,It50 2,800

- 15 -

Class I Class II Class III
Class IV Class V Class VI

Density Per Square Mile
Above 12 9.50 - 12.00 7.00 - 9.50 4.50 - 7 000 2.00 - 4050 Below 2

Teacher - Pupil Ratios

Elementary

High School

30

25

29

24

28

23

27

22

26

21

25

20

Independent school systems which have population of 10,000 or less according to the latest Uo S. Census are classified in the density group which would result from combining the average daily attendance of the county and independent systems and dividing the result by the area of the county (including the independent system) in square miles.
In addition to the above factors that are included in the calculation of total MFPE funds, there is also an "equalization" allotment to provide some element of enrichment education to those systems which do no more than meet their required local effort.
Required Local Effort
From each school system's share of MFPE the required local effort or chargeback -- the amount that each system is obligated to contribute locally to finance the minimum educational level provided by the Minimum Foundation Program for Education -- is deducted. This deduction is based on the ability of each local system to support its schools as determined by an economic index. The economic index formula was devised because property digests in each jurisdiction are not comparable, due to vast differences in tax appraisals and assessments, and therefore are not indicative of an area's ability to support its schools. (An explanation of the economic index will be found on Page 17.)
A great variation in the ratio of local to state support exists among Georgia's school districts. This variation results from the inherent variation in the distribution of wealth among Georgia~s counties, and from

- 16 -

the provisions of MFPE which produces less local effort in the poorer school districts. Examples of differe~ce in local contributions are:

1962 - 1963

Atlanta

Required local effort per child
Local enrichment per child
Share of state funds under MFPE per child
Percentage state funds
Percentage local funds

$ 60.57
169.37
114.65 33.3% 66.7%

Jefferson County
$ 19.1,9 .61
231.93 92.1% 7.9%

The proportions and amounts for the entire state are shown below for the years 1952-53 and 1962-63:

Local State Federal
Total

Sources of School Revenue for All School Purposes

1952 - 1953

Amount

.L

$ 35,037,000 25% 93,843,000 67 10,426,000 8

1962 - 19 63

Amount

-%

$ 87,500,000 29% 196,350,000 65 18,280,000 6

$139 9 306,000

$302,130,000

- 17 -

Economic Index1

1. The total required local effort for the state is deter-
mined by the calculation of the return of a seven-mill tax levy on the State School Tax Digest.

2. The required local effort (often designated by the misunderstood word "chargeback") for each system is based upon the economic index. This index is used to measure the local systemts ability to support its schools as compared with the other county and city school systems of Georgia. It is expressed for each system as a fraction of the combined ability for the entire state.

3. The factors entering into the calculation of the Economic
Index with the weights assigned to each are as follows:

- Percent of public utilities tax digest. - Percent of effective buying power for
five years.

Wt. of 2 Wt. of 6

- Percent of retail sales for five years.
- Percent of motor tag taxes paid 0 0
- Percent of state income taxes paid. 0

Wt. of 2 Wt. of 2 Wt. of 1

Total of weights for all factors.

13

4. The public utilities tax digest, motor tag taxes and
state income tax returns are secured from the State Department of Revenue. Average effective buying power and
average retail sales are taken from figures compiled by Sales Management Magazine and pUblished annually in its May issue.

These sources of information are prescribed in the Minimum Foundation Law.

5. The weights given each factor are indicated above. Under the law the State Board of Education may vary the number and weights to be assigned to each of the five factors
listed above. As an example, the property tax digest

1 State Department of Education, How Georgia Operates Its Schools.

- 18 -

was a factor in the Economic Index up to July I, 1959. This factor was gradually eliminated from the index by action of the State Board of Education.
6. The Economic Index for each system is determined by determining the system's percentage of the total of each factor in the Economic Index and applying the weights given above. This index is used as a decimal fraction to arrive at the required local effort for each system for the coming year.
The Minimum Foundation Law is found in the bulletin. Georgia School Laws, which will be sent to anyone who requests it from the State Department of Education. Section 32-615 prescribes the basis for computing the Economic Index.
The following is an example of the application of the economic index to a county which has in it both an independent system and a county system.

Computation of Economic Index and Required Local Effort for Carroll County and Carrollton
1962-1963

Factors in the Econom1c Index

Fraction of the Total Weight of Each Factor

Public Utilities (1961)

.154

Effective Buying Power (1956-1960)

.461

Retail Sales (1956-1960)

.154

Motor Vehicle Tag Sales (1961)

.154

State Income Tax (1960)

.077

1.000

- 19 -

Economic Index for Carroll County (including Carrollton)

Public Utilities Digest

Total for Carroll County Total for the State

x .154 =

3.521,8~t
430.495.6

x

0154

=

.008180879 x .154 =

.001 259 855

Effective Buying Power for 5 years

Total for Carroll County Total for the State

x .461 =

179,098,000 26.117,513

x

.461

=

.006857391 x 0461 =

.003 161 257

Retail Sales for 5 years

Total for Carroll County Total for the State

x .154 =

1~4,675,000
18,4 9.714,000

x

.154

=

.007303529 x .154 =

.001 124 743

Motor Vehicle Tag Sales

Total Total

for for

Carroll Countl the State

x

.154

=

12

,511475,,18

n33

75 .99

x

.154

=

.009231881 x .154 =

.001 421 710

- 20 -

State .I..n,;;;,c,;;;om-..e. ~

Total for Carroll County 077 =

10tal for the state

x

210,139.02 45,7 00,053.65

x

.077

=

.04598222 x .077 =

.000 354 063

Economic Index for Carroll County (total of above)

.007 321 628

Total required local effort for Carroll County (including Carrollton) for 1962-63:
.007 321 628 x required local effort statewide =
.007 321 628 x $27,500,000 = $201,3 45

Division of Required Local Effort between Carroll County and Carrollton:

Total County Digest (including Carrollton) Digest of County Property outside Carrollton County Digest on City Property

$ 11,041,369. 00 6,624,821.40
$ 4,416,547.6~

Adjusted Property Digest for Carrollton

Under Minimum Foundation Law:

103333 x ~.416.547e60 =

$

Public Utilities for City

Total Adjusted Digest for City

$

Total Digest for the County:

Property Digest Public Utilities

$ 6,624,821

$

2,578'1 9,203,

04
~5

Adjusted Total Combined Digest for City and County:

City County Total

$ 6,993,126
9,20~.125
$ 16,19,251

- 21 -
County's share:
9,203,125 = 56.822563%
16.196.251
City's share~
166'. t~63,.215216 = 43 .17 743 7%
County's part of required local effort:
.56822563 x $201,345 = $114.409
City's part of required local effort:
.43177437 x $201.3 45 = $ 86.936
School Building Program
Enactment of the Minimum Foundation Program for Education was accompanied by a new program for construction of school buildings in Georgia. The state School Building Authority was established as a lending agency to the local systems to help them build schools. When the local systems repay the long term loans from the Authority. they obtain title to the school buildings.
The distribution of school building money to the local systems has undergone changes since the original formula of 1951-52. Originally it was disbursed to the local systems at the rate of $200 per state allotted teacher. Distribution of capital outlay funds is now governed by the State Board of Education formula of $50 per state allotted teacher with the remaining amount of the $20 million appropriation to be distributed according to the increase in each system's average daily attendance since 1951-52. This new formula recognizes the needs of the growing urban systems where teacher allocations per pupil are lower (see density allocations. Page 15) and where the explosion in average daily attendance has caused double sessions, temporary classrooms and crowded conditions. The formula also specifies that to participate in distribution of funds over and beyond the $50 per teacher the school district must have half of its bonding ability outstanding. Thus local effort is taken into consideration. although outstanding bonding capacity is. of course. no indication of the quality of tax evaluation. and the district's real economic ability and effort.

- 22 -
Vocational Education
A system of 26 area vocational-technical schools is scheduled to become fully operative in 1964. This very considerable current expansion is described in a recent bulletin published by the State Department of Education and titled Georgia's Area Vocational-Technical Schools -- New on the Horizon.
High school programs are offered in agriculture. business and distributive education. home economics. and trade and industrial education. Examples of some shifts in emphasis are shown in the following table.
The percentage of expenditures for agriculture and home economics is declining and the percentage of expenditures for trade and industrial education has increased markedly. Expenditures for business and distributive education have remained small.

Percent of Total Expenditures for Vocational Education by Each Vocational Service

1959-1960 1962-1963 1963-1964*

Agriculture

33%

27%

25%

Business Education

2

3

3

Distributive Education

2

3

2

Home Economics

33

30

28

Trade and Industrial

Regular Program Practical Nurse Technical Training State Trade Schools
Total
* Estimated

12% 2 6
10
30

18% 2 9 8
37

27% 2 6
..L
42

- 23 -
HIGHER EDUCATION
Public higher education in Georgia is directed and controlled by a constitutionally-established Board of Regents composed of 15 members appointed by the Governor
for staggered terms of 7 years each. One member is
appointed from each of the Congressional Districts and five are appointed from the state at large. The Board of Regents has broad powers to operate a state system of higher education, including the power to establish new institutions i discontinue existing ones p and authorize new programs at existing institutions. The Chancellor of the University System is selected by the Board of Regents and is the system~s chief administrative officer.
The colleges in the University System, including those recently authorized but not yet in operation, are listed on the attached table which also shows for each their 1961-62 enrollment and the numbers of degrees~ diplomas and certificates awarded. An accompanying map shows these institutions by location and type, while another shows the state's private colleges in the same manner.
Higher education fall enrollments in Georgia for 1953 through 1962 are shown on another table. Also shown are enrollment projections made by the Commission staff for the years 1963-75.
Total fall enrollments in Georgia will increase from 50,220 in 1963 to 90,633 in 1970 (80% more than 1960) and 109,779 in 1976 (119% more than 1960) according to these projections made by the Commission's staff. These projections are approximately the same as those made by Ronald B. Thompson for the American Association of Collegiate Registrars (which projected 89,609 in 1970). They are lower than the projections published by the Southern Regional Education Board in Statistics for the
Sixties (which projected 98~000 in 1970). The SREB pro-
jectIons assumed to greater degree than did the staff projection, that Georgia and other Southern states would move closer to (but not reach) the projected national average in terms of the proportion of young people who attend college. To the extent that this actually occurs, the higher SREB projections may be more realistic than those prepared by the Commission staff.
,.
.~

UNIVERSITY SYSTEM OF GEORGIA, 1961-62 DATA

Institutions

Fall

Degrees Awarded

1 & 2 Yr.

Total

Enrollment Doctoral Masters 1st Prof. Bacca. Dipl. & Cert. by Inst.

Offering Advanced Grad-

uate Instruction:

University of Georgia

10,440

23

275

106

1,529

Georgia Inst. of Tech.

6,754

13

172

948

Medical College of Ga.

470

5

80

21

Georgia State College

3,447

19

394

1,933 1,133
106 413

Four-year Colleges Offer-

ing the Master's Degree:

Georgia Southern College 1,764

56

377

433

Woman's College of Ga.

821

24

183

207

Ft. Valley State (Negro)

988

3

147

150

Other Four-year Colleges: West Georgia College Valdosta State College North Georgia COlle~e Albany State (Negro Savannah State (Negro) Augusta College* Armstrong College*

1,089 916
927 984 1,065
992 985

92

10

164

6

131

155

2

123

90

64

102 170 I\) 131 .J::" 157 123
90 64

Two-year Colleges:

Middle Georgia College

600

Columbus College

659

South Georgia College

641

Georgia Southwestern

484

Abraham Baldwin Agric.

702

Southern Tech. Inst.**

895

Albany***

Brunswick***

Dalton***

136

136

35

35

84

84

104

104

105

105

270

270

Total by Type:

35,623

36

554

186

4,264

906

5,946

* Conversion to four-year college authorized to take place over period of several years. ** Branch of the Georgia Institute of Technology.
*** Authorized and in planning and/or construction stage.
Source: U. S. Office of Education and 1962 Annual Report, University System of Georgia.

- 25 - PUBLIC INSTITUTIONS OF HIGHER
EDUCATION IN GEORGIA BY TYPE Four-year
e.... Junior college
.6- New junior college authorized
~ Southern Technical
Institute
POLK
@ Medical College of
Georgia Negro
Junior college in process of conversion to 4-year college
GRADY

- 26 -

PRIVATE INSTITUTIONS OF HIGHER EDUCATION BY TYPE

Four-year
[J Negro four-year
~ Junior college A New junior college
authorized
POLK

WORTH
A
COl..OUITT

OECATUR

GRAOY

THOMAS

- 27 -
HIGHER EDUCATION ENROLLMENTS 1953 - 1975

40.810

11,879

18 645

24 984

PRIVATE PUBLIC 1953

PRIVATE PUBLIC 1963

PRIVATE PUBLIC 1975

Source: Actual Data - U. S. Office of Education, Projections - Commission Staff.

-Year
1953 1954 1955 1956 1957
1958 1959 1960 1961 1962

- 28 -

PROJECTIONS OF HIGHER EDUCATION FALL ENROLLMENT IN GEORGIA*

Total

Public Institutions (University System)

Private Institutions

34,001 39,402 41,778 45,914 45,645
48,739 47,564 50,220 51,955 56,228

22,122 26,272 28,,196 30, 689 31,041 33,748 31,153 32,905 34,728 38,019

11,879 13,130 13,582 15,225 14,604
14,991 16,411 17,315 17,227 18,209

1963 1964 1965 1966 1967
1968 1969 1970 1971 1972
1973 1974 1975

59,455 64,070 69,404 74,620 80,830
84,475 87,011 90,633 93,941 98,341
102,066 105,987 109,779

40,810 44,591 48,929 53,240 58,318
61,588 64,061 67,345 70,410 74,313
77,725 81,3 02 84,795

18,6 45 19,479 20,475 21,380 22,512
22,887 22,950 23,288 23,531 24,028
24,3 41 24,685 24,984

* 1953-62 are actual enrollments. 1963-75 are projections.
Prepared by Staff, Governor's Commission to Improve Edl.\cation.

- 29 -
Income and expenditures of the University System for operation of the institutions in 1961-62 are summarized on accompanying tables. Totals of income and expenditures in this table are not equal because the items are selective rather than all-inclusive.

COMPARISON OF SELECTED CATEGORIES OF INCOME AND EXPENDITURES

1951-52

1956-57

1961-62

Income:

State Appropriation Internal Income

$12.633.000 $27,753,081 $34,075,750 15.79,913 24,410,813 38,964,795

Expenditures:

Educational and General
Auxiliary Enterprises
Plant Expenditures Student Aid

17,527,380 4,260,282 3,019,099 293,030

30 , 1 1 2 , 7 7 7 6,180,170 6,297,988 643, 06 7

52,478,708 9,417,029
10,424,567 985,981

Source: Annual Reports, University System of Georgia.

- 30 -

INCOME OF THE UNIVERSITY SYSTEM, 1961-62

State Appropriation t , $ 34,075,75 0

Internal Income

Educational and General
Student Fees $ 9,839,229 Gifts, Grants and
Endowment Income. 4,920,247 Governmental other than
State Appropriation 5,235,264 Sales and Services 5,785,436 Other Income , 262,803

Total Educational and General Internal
Income f

$ 26,042,979

Auxiliary Enterprises Dormitories . $ 2,659,158 Dining Halls 3,686,698 Bookstores and Student Centers . . 2,997,268 Other Activities . . 1,977,476

Total Auxiliary Enterprise Income e

11,320,600

Plant Funds Gifts and Grants . $ Earnings on Temporary
Investments . Other Income

229,723
501,93 0 234,550

. . . . . Total Plant Fund Income .

.. .. .

966,203

Student Aid Gifts and Grants Endowment Income
Total Student Aid Income .
Total Internal Income

...
. . -'

635,013 38,964,795

Total Income from all Sources I- .$73,040,5 45

Source: 1962 Annual Report, University System of Georgia.

- 31 -

Educational and General.

Auxiliary Enterprises

Plant Funds











Q







Student Aid



It















$ 52,478,707 9,417,029
10,424,567 985,981

Total Expenditures e

PERCENTAGES OF TOTAL EDUCATIONAL AND GENERAL EXPENDITURES MADE IN 1961-62 FOR:

. . . Administration t



. . . . . General Expenses

~



0



t

5.1% 3.8

Student Welfare o ~ e c 1.4

9.3 Plant Operations . I!l'



t



eo





0;

0

.. e

Libra:ry

O-.&se~t

, o.oo

3.3

33.1 Instruction









0







0

9



e

Activities Related to Instruction



0





7.9

Research





eo.





0

$





Agricultural Extension Service

General Extension .11.'."0."0

Source: 1962 Annual Report, University System of Georgia.

- 32 -
Since the beginning of the 1950's there has been vigorous expansion of educational programs in the system. Illustrative of this are the 20 or so doctoral programs authorized for graduate-level institutions since 1950; additional master's degree programs at these institutions, plus initial authorization of degrees at the master's level for Georgia State College, Fort Valley State College, The Woman's College of Georgia, and Georgia Southern College; and authorization for junior colleges to confer associate degrees.
Existing service programs of colleges, such as extension, have served an increasing number of Georgians since World War II, and new programs have been created to meet emerging needs. Illustrative of the latter are the Continuing Education Center at the University of Georgia, the Industrial Development Division of the Engineering Experiment Station at the Georgia Institute of Technology, and the Institutes of Law and Government and Area and Community Development at the University of Georgia.
Research programs of major institutions have likewise expanded rapidly. Research expenditures have risen from $3,000,000 (approximately) in 1951-52 to over $11,000,000 in 1961-62, an almost fourfold increase. Scholarly research publications of faculty members in the same period increased from 520 to 995.
The number of faculty members employed by the University System increased from 1,008 in 1951-52 to 1,641 in 1961-62. This increase did not keep pace with the increase in enrollments and the number of students per teacher grew from 15.2 in 1951-52 to 17.2 in 1961-62.

GOVERNOR' S COM~HSSION TO IMPROVE EDUCATIO;.1
100 MITCHELL STREET, S. W.
ATLANTA, GEORGIA

STAFF MEJ'.lORANDm.! NO. 4

F 0 It

E D U CAT ION
H II 0 M AND FOR

vI Ii f'.. '1' ?

NOVEMBER 4. 1963

-EDUCATION: FOR WHOM AND FOR WHAT?
GEORGIA'S PUBLIC SCHOOLS
1. Education for all irivolves providing programs for individuals with a wide range of individual differences in abilities, motives and purposes.
2. The democratic principle of equality of opportunity applies equally to the fast and the slow, the eager and the reluctQnt learner. A school program which does not nrovide each pupil the means for achieving his own best potential does not provide equality of opportunity.
3. Equal opportunity is related to all aspects of the school system --legal arrangements, location, school boards, administrative leadership, teacher competence, and state and community support -- cooperatively geared to operate efficiently.
4. Both general and specialized education must be continually adapted to adjust to changing needs, changing knowledre, and improved processes and materials of instruction.
~. Education for the space age and rapid change puts em. ohasis on the Efocesses of learning and problem solving as well as on the increasing content of knowl-
6. :.:xeel1encc in education requires increasingly a "builtin" com)::rehens i ve self-improvement arrangement which ~ides the continual evaluation and adaptation process so essential to keeping up with the times.
-I-

- II -
EDUCATION~ FOR WHOM AND FOR WHAT?
HIGHER EDUCt.TION.
Por ll'ihorn Three Viewpoints
1. The "elite" view advocates limitation of higher education opportunity to a select group based either on economic privilege, social status, academic competence, or some combination of the three. The most liberal advocates of limitation would provide higher education for all capable of profiting from it, but there is widespread lack of agreement as to the academic canacity necessary to profit from higher education and these differences are reflected in wide variations in admissions standards and practices. The "elitist" tends toward more and more selective and restrictive admissions policies.
2. The "equalitarian" view advocates provision of opportunlty~N-tor"a college education to all youth. Proponents seek, for example, to remove economic barriers to equality of opportunity by establishing community colleges within commuting distance of all youth and by the provision of financial aid on a large scale; to remove barriers of intellectual aptitude and achievement by remedial and specialized programs; and to remove motivational barriers by guidance and counselling, social work programs and the like. The "equalitarian" tends toward more "open door" admissions policies.
3. The "experimental" view conceives of education as a
great; on=go:bi.g" social experiment through which all promising approaches should be tried in the quest for better answers for the times rather than ultimate answers for all time. Advocates approve diversity of higher education opportunity to accomodate broad ranges of people -- their values and their circumstances. They would emphasize, however, that higher education theory and practice should be tested constantly through research and evaluation so that results can be identified, strengths can be conserved, and \\eaknesses remedied. They would insist that research and evaluation are the means for determing who should have higher education opportunity.

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For What Three Major Responsibilities
1. The preservation, expansion, and dissemination of tUi'owledp;e.
11'''''/ ... ,.
The conservation of man's reservoir of knowledge re~uires comprehensive libraries, museums, and laboratories to house vast collections of written and visual materials, specimens, objects, and artifacts. Though costly, the preservation of knowledge is essential for the conduct of higher education's three major functions: instruction, research, and service. Through research the reservoir of available knowledge is expanded and through instruction and service it is disseminated.
2. Ire imP.?:!.ing and strengthenine; of society.
This broad purpose is achieved through: (a) helping people develop the needed competencies to fill adequately high level positions in our society; (b) helping society evaluate its strengths and weaknesses; (c) helpins society deal with its problems through conceptualizing and testing related social, scientific and technical innovations; (d) providing knowledgeable and skillful consultation to segments of society involved in adapting to changing conditions.
3. t~~~ deve!2pment of people to their highest potentialities.
Personal development or self-realization is of central importance to a democratic society. Higher education is concerned with helping equip people to make intelligent choices about their lives and to obtain the knowledge and develop the abilities to achieve their personal goals.

EDUCATION: FOR WHOM AND FOR WHAT?
GEORGIA'S PUBLIC SCHOOLS
Gcvernor Sanders' objectives for education make a strong case {'or universality and equality of educational opportunity for all Georgians. This is based on time-honored democratic prinicples which Americans have long glibly espoused. It is relatively easy to agree with such broad principles, but it is much more difficult to find agreement on exactly what is meant by providing equal opportunity -- and even more difficult to actually provide equality for all the diverse elements among the people.
FOR WHOM? -- SOME PROBLEMS
Georgians are committed by constitutional and statutory provision to an "adequate" education for all the people and compulsory attendance for mentally and physically eligible children from seven to sixteen years of age. This responsibility extends equally to the handicapped, the slow learner, the great range of "averages" and those "gifted" in any of several ways. Equality also must apply to each regardless of his background, inter~stst and family characteristics.
Equality of educational opportunity for the individual may be stated as "the right of each person to maximum development of his potential." This puts emphasis on individual differences and the wide range of possibility for uniqueness
C: Dcrsons. Individuality is a jealously-guarded facet of
clGL,ccracy.
If we accept these rights -- and Americans generally are committed to them -- then we must accept the demands they put on our educational system. That is, if we are to educate ~ children through their developing years, and if each child is to grow at his own rate and in his own best way -- as far and as fast as he can go -- schools must nrovide for this kind of individual learning.
Such schools cannot be designed for "rubber stamp" muss production of a uniform product. They must offer a variety of activities, paced at differing speeds. Teachers ~ust be able to diagnose and provide for the best development of each pupil in terms of his abilities and past learninr -- his nresent interests and motives.
If academic ability (I.Q.) were the only consideration, education would be a relatively simple task. Moving pupils along at differing speeds as they learn school subjects presents no great difficulty. But this kind of ability is also
-I-

- 2-
mixed up with all kinds of other characteristics. Cultural t2C -round, ~hysique and self-concept. past success or f211ure, s~ecial talents. and many other such factors enter intc the motives and interests of the bright and the dull.
,\n example may be drawn from the "disadvantaged" or culturally deprived youngsters so pUblicize~ recently in the popular press. These are the children of the city clum areas, some minority groups. the migrant farm laborers, the backwoods mountaineers, and the like. Their past experience is so different from our "average" American cUlture that they cannot relate themselves to a school program t:~sed, as most are, on middle class values and expectations.
People in the South have tended to think of Negro chjldren as being the major deprived group. While there '.pe many Hegroes in this category, most other ethnic,
cial, and economic groups are also represented.
A chile ~ho has learned in a slum street and from un~tcrested oarents -- or their equivalents -- that he is '~~arded for stealing, lying and fighting, finds it hard tc understand teachers and classmates who expect him to ill,;::; [';ood" anC:. "worl( hard" at tasks for which he can see >~O purpofe. It is a virtual impossibility for him to learn ~tandard scheol subjects until he can find a bridge between :'-:11'\:: .::: :c~ ;::ee3 it and school work as it is. The same may td s~id ~or many pupils from less drastic backgrounds who [iPC siTr,iJ.:lrJ.:' misfj,ts in schooL
Many of these youngsters are among the school dropouts. -~~.';,:.;::.' C)~1')(;r~::c:n,cc so little success in school, and so much ~,.cl).;-;tY'ation.t'l,.hat they often leave school embittered, recalcitrant. and often unemployable, to become social and econemic problems -- a drain on society rather than an nsset. The solution of this problem thus becomes of double
ignificance. They can hardly be said to have had "equal opportunity" for maximum development.
Programs for correcting this situation must be based e~ building the cultural bridge as early as possible. Thus. nursery schools and kindergartens for these children are 'r8commended as ways to help offset the cultural starvation of the very early years which is such a barrier to later development. Providing a school program specially tailored to these youngsters in each grade and subject seems essential until they can make for themselves the transition to more ~cceptable values and motives.

- 3-
Such a program demands highly qualified teachers who understand and inspire pupils, a wealth of teaching material, and a curriculum broad enough to give many possibilities for attracting interest over a broad range. School work related to practical and vocationally-oriented studies is likely to be more appealing to these pupils than are academic studies -thus providing a means to give them some success in school while bringing about a gradual acquaintance with and acceptance of the need for general education.
Many principles implied in this example apply also to gifted pupils and good home and community situations. A school which tailors its program to the needs and potentials of its own pupils is an essential if education is to assist them as "fast and as far as they can go" toward full realization of potential. Whether for the most gifted or for the disadvantaged, the highest quality of excellence in education is required in order to achieve the goal of equality in education for all.
In order to provide this, systems and schools must measure up in every way to the best standards of organization, staff and facilities that can be provided. They must fully achieve the goals of relevance, efficiency, comprehensiveness, and quality.
FOR WHAT? -- THE ENDS AND MEANS
There is great diversity of thought among Americans about the purposes of education. At the philosophic level the differences often become quite complicated and seemingly unresolvable. At the operational level, differences often get in the way of efficient education.
A unified and consistent theory of education no doubt would be advantageous to the schools. Some of the best minds of the nation are seeking progress in this area. However, for the purpose here, those matters of more immediately practical nature will be considered. There is little disagreement with such purposes as good citizenship, literacy~ making a living, solving problems, and living a satisfying life.
General and Special Education
"General education: may be briefly defined as the skills, knowledge, and attitudes essential to each person in order for him to become a constructive member of our society. These fundamental learnings are much the same

- 4-
for everyone, and include the "3 R's," some of our history.
cultural heritage of values. the nature of the world and living thinGs, and the like. The elementary school curriculum is comprised of these topics. as is much of the progra~ in the high schools. Specialized subjects in college preparatory programs or vocational programs. however. become an increasingly prominent part of the upper high school grades.
Effective curriculum planning and teaching involve decisions as to what to include and how it can be most effectively learned by children. how much to include. and when to offer it. The effectiveness with which such decisions are made is measured by the extent to which the pupils, by the time they leave school. have gained the attributes they need in life. Judging a school program by a list of subjects offered, qualifications of teachers. size of buildings, and other concrete items is much too limited a base. The real measure must be of the performance of these people who are products of the educational system.
Good general education, then. comes through the process of:
1. Defining the objectives of education in terms of desired behavior of people.
2. Planning a school program designed to achieve these objectives.
3. Constantly evaluating the results and their relation
to changing needs.
4. Continually revising objectives and programs to take
account of change in needs. new techniques, expanded knowledge 8 and extended vision.
The factor of constant evaluation and adjustment to new processes and information is increasingly important in today's changing times. The effects of recent developments in science and mathematics are examples. The "new" mathematics and "new" science in the elementary and secondary schools confuse parents because they are so different from that which they learned. Teachers also must have assistance in using the new ideas and approaches. The schools in which these improved practices are being effectively used are those which provided means by which

- 5-
teachers could obtain knowledge of new techniques and the materials necessary to teach them. They have, in effect, gone throu~h the steps outlined above.
The space age tempo of change has heightened other factors in the problem of "what" to teach. Since we cannot predict the needs of people very far into the future, how can we prepare youth for what lies ahead? Recent explosions of knowledge have severely taxed the educational system -- what next?
Some Possibilities
One possibility is "life long" education. Arrangements for learning the new as it comes and is needed by adults is well exemplified in vocational education. Retraining workers for new jobs as old ones are outmoded is obviously necessary. The same applies also to new ideas and world conditions as they contribute to better living.
Another possibility is to develop programs which teach youngsters to think, to understand, and to use processes of efficient problem solving for themselves. They then could face unforeseen circumstances armed with processes which increase the chance of their being able to meet them.
Newer practices now in use show that these and other possibilities are attainable. But they do not come from traditional approaches. They are achieved by cooperative effort of all segments of a modern educational endeavor, operating at high levels of efficiency. They require a "buil t-in" arrangement for changing and adapting to new needs and new techniques and knowledge as these become available.
Modern education is no longer merely a process of assignment and recitation of facts from a textbook. It involves a process of design and implementation of ways to produce people with effective behavior. A school system must have the necessary resources, organized efficiently. It must have strong leadership at state and local levels, operating within efficient organizational and administrative policy. It involves cooperative effort of boards, superintendents, principals. supervisory and supporting personnel -- and teachers with much greater competence than we have had in the past.
If Georgiais children of today and tomorrow are to have the kind of education that will give them comparable opportunities to those of other states and regions,

- 6-
education must be improved in all its aspects. The "what" of education is becoming as much a process as a body of content. Both content and process must be continually adjusted to take advantage of changing needs and possibilities. "Built-in" improvement plans are a necessity not just a desirable frill.

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EDUCATION: FOR WHOM AND FOR WHAT?
HIGHER EDUCATION
The twin questions of higher education for whom and for what are among the most fundamental and perslstenr-racing those responsible for its operation and development. Points of view and choices made about these questions govern many specific decisions which determine the real character of an individual institution of higher education or a system of higher education. A brief consideration of these questions will serve as background for dealing with specific problems and formulating related recommendations.
FOR WHOM?
Three major points of view are presented in answer to the question of who should be served by higher education institutions. These may be described as (1) the "elite" view, (2) the "equalitarian" view, and (3) the "experimental" view.
The "Elite" View
This point of view advocates the limitation of higher education opportunity to a superior, select~ or privileged group. Some colleges and some classifications of colleges have historically appealed either by design or necessity to economically and socially privileged groups. The post-World War II era has seen a growing practice by many institutions of restricting enrollment to intellectually or academically gifted groups. Others strive to appeal to people who are both economically privileged and intellectually gifted. Those colleges which succeed in these aims become "status" institutions in the measure that our society accords status to the economically and socially privileged and the intellectually superior.
The elite point of view is justified by some on the basis that only the "select", however defined, are worthy of the investment of the resources required to provide higher education opportunity. Others justify restriction

- 8-
of opportunity to those who can pay a large share of the cost through tuition and fees. The most popular current justification for restriction is on the basis of limitation to those who are academically capable of profiting from college education and are sufficiently motivated to perform at a quality level.
The real problem with the latter approach is that there is no agreement about the degree of capacity and performance necessary to profit from a college education. Extreme intellectual "elitists" and those institutions which would project their image as "quality education for quality people" tend to restrict opportunity to the top 5% and 10% of high school graduates; moderates would limit opportunity to the top 25% to 35%; while the more liberal would think in terms of providing opportunity to the upper 45% or 50% of high school graduates.
It should be kept in mind that such percentages are in terms of high school graduates and not of the total population. In 1960 about 65% of the 17 year-olds in the United States graduated from high school. The upper 50% of this group would represent only 33% of the total age population, while the upper 10% would represent only about 7% of the age population. In the same year, Georgia graduated only about 49% of the 17 year-olds, which means that the upper 50% of the high school graduating classes would represent only 25% of the high school graduating age population. l
The "Equalitarian" View
Proponents of this view would strive to provide college attendance opportunity for all youth. Even though accepting the fact that people are not equal (in the sense of equivalent) in such things as ability, economic circumstances, needs and motivation, advocates of this approach would seek educational and other social means to eliminate as many barriers as possible to equal opportunity for higher education.
To cope with the economic barriers to equality of opportunity there is advocacy of community colleges within
1 U. S. Office of Education, Digest of Educational Statistics,
1963 and Statistical Abstracts, 1962.

- 9-
easy commuting distance of all youth with tuition either nominal or eliminated entirely. In addition, large-scale scholarship and living stipend programs financed by state and/or federal funds are advocated. To cope with barriers of intellectual aptitude and academic competence, there is advocacy of a host of remedial and specialized programs aimed at bringing those of low achievement up to minimum high school graduation standards and, furthermore, that such persons should be given an opportunity to at least "try" attending college. To cope with diverse and complex motivational barriers there is advocacy of such things as comprehensive guidance and counselling programs, social work programs, and especially-designed educational programs for the culturally deprived, all of which are aimed at helping each individual move as far up the educational ladder as possible.
The equalitarian view is based on an optimistic view of human capacity for growth, development and perfectibility and an equally optimistic view of social and economic growth potential to undergird massive educational programs. There is belief, in fact, that the two types of growth are inseparably resonant wherein large-scale individual development is a major "causative factor" in social and economic development which, in turn, is a "causative factor" in promoting widespread individual development.
The "Experimental" View
The preceding presentation of the "elite" view and the "equalitarian" view as to who should attend college does not do justice to the wide range and combination of views existing and implemented in practice by the 2,100 institutions of higher education in the United States in 1962-63. Varying degrees of "elitism" and "equalitarianism" in higher education thought and practice are represented by institutions in all states, while practices based on both general views exist simultaneously within many individual institutions.
This diversity of opinion and practice leads to a point of view which attaches great value to diversity
1 U. S. Office of Education, Education Directory, 1962-63, Part 3.

- 10 -
itself; seeing such as one of the landmarks and strengths of American higher education. Differences of opinion, values, and ways of life are cherished in a democracy, and therefore its higher education institutions should be sufficiently diverse to accommodate the broad ranges of people, values and circumstances that exist.
Advocates of the experimental view do not subscribe to freezing higher education practices to the present range of norms. On the contrary, advocates of this point of view tend to conceive of education as a great, on-going social experiment in which all promising approaches should be tried and tested.
Such approaches as highly selective admissions, accelerated programs and honor programs are encouraged for the academically gifted with equal encouragement to "open door" admissions' policies, remedial programs, and decelerated programs for the slower and less able. There is concurrent approval of liberal education and occupational education. Expansion and strengthening of comprehensive universities and community colleges are welcomed as fulfilling desirable roles. Both private and pUblic higher education are considered essential features of such a system.
Adherents of such an approach regard "current practice" as the starting point for evaluation of strengths and weaknesses, for conceptualization of worthwhile innovations, and for careful and controlled experimentation. This process is seen as desirable at every level, for all functions, and for all aspects of higher education -whether it is admissions, curricula, instruction, research, service, facilities, finance, organization and administration, or control.
The implementation of this point of view requires adequate provisions for systematic research, planning and development, and evaluation at the institutional state and national level. Through such means, better answers for the times are sought rather than ultimate answers for all time; diffusion of higher education values through society is sought rather than service only to the elite or only to the unfortunate or underprivileged. This view seeks a balance based on experience and experimentation between the possible selfishness or undue pessimism of the elite view and the, perhaps, misguided altruism or excessive optimism of the equalitarian view.

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---- FOR WHAT?
No attempt will be made to list specific objectives and purposes of higher education. Instead, a classification of the broad areas around which specific objectives and purposes cluster is presented.
Higher Education has a Major Resl?onsibilit;( for the
Conservation. Expansion and bfs'semlnatloh' 'ol Rh'owled'5e
Knowledge (broadly defined in terms of know what - know why - and know how) is the unique province of education. Within higher education institutions collectively reside society's major reservoir of knowledge and its largest concentration of able people dedicated to knowledge's preservation, expansion, and distribution according to need and to capacity. From this major area of purpose, higher education derives its three chief functions:
Instruction
Research
Service
The dissemination of knowledge and the development of new knowledge depends directly upon the reservoir of existing knowledge. To maintain this reservoir, higher education must have at its command comprehensive libraries and museums; large collections of specimens, Objects and artifacts; campus laboratories and equipment; and field laboratories where phenomena can be maintained and studied in their actual environment. The preservation of knowledge is a costly but essential requirement before instruction, research and service can be conducted.
Many specific purposes and objectives of higher education cluster around the broad purpose of improving and strengthening society. This purpose implies four important functions:

- 12 -
1. Helping people develop the competencies needed to fill adequately the leadership and high-level professional and specialized positions in our society.
2. Helping society evaluate its strengths and weaknesses. This is "social criticism", the function probably least understood and appreciated by society generally. Such activity is often resented and, at worst, generates efforts to repress or censor.
3. Conceptualizing and testing social, scientific
and technical innovations that deal mo~e effectively with the problems of our society.
4. Providing knowledgeable and skillful assist-
ance to segments of society involved in adapting to changing conditions and circumstances.
for i\ll1:t'1'es
Many of the specific objectives and purposes of higher education cluster around the area of personal development or self-realization. This purpose is of central and unique importance for a democratic society. It means that higher education accepts the responsibility, not only for helping people make intelligent choices about their lives, but also for helping them obtain the knowledge and develop the competencies necessary and desirable for achieving their personal goals. Herein higher education is conoerned with helping people equip themselves for a myriad of civic, occupational, cultural, recreational, religious, and social roles.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, S. W. ATLANTA, GEORGIA
STAFF MEMORANDUM NO.5
o R G A N I Z A T ION AND ADM I N I S T RAT ION o F E D U CAT ION
(PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 4, 1963

ORGANIZATION AND ADMINISTRATION
GEORGIA'S PUBLIC SCHOOLS
1. Constitutional and statutory provisions for the educational system have a direct effect on efficiency of oneratioD and quality of instruction.
2. ~he Constitution should provide the framework for administration of education at state and local levels, and for empowering and directing the Legislature to enact laws for carrying out these basic provisions.
3. Statutory provisions for education should set forth [aneral foals for the sChools, provide adequate financial support, and delegate implementation to state and local school authorities.
I!. The methods of selection and the qualifications of school board members and school superintendents in Georgia do not contribute uniformly to effective eaucation.
,5. Many school systems and schools in Georgia are too small for efficient and effective operation. The combining of many present districts is essential for providing comprehensive school programs.
b. fhe prevision of strong leadership by highly qualificC personnel -- insulated from partisan politics -. is a major factor in educational improvement.
7. ille separation of the roles and functions of the legis-
lature, the school board, the administrative staff, and the teachers should be clearly define; and followed.
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- II -
ORGANIZATION AND ADMINISTRATION
HIGHER EDUCATION
1. The most unique characteristic of the organization of higher education in Georgia is the single governing-coordinating board for all state-supported institutions o Georgia was one of the first states, and is still one of only six, to adopt this practice.
2. The number of members of the Board of Regents, their method of appointment, th~ir term of office, and the provision for overlapping terms are similar to general practice on these matters in other states.
3. The Georgia Constitution and supporting statutes vest in the Board of Regents complete authority for the government, control and management of the system and its institutions. The only official checks on the Board are the membership appointing power of the Governor, the power of confirming the Governor's appointments by the Senate, the powers of the Governor and Legislature in providing or withholding supporting funds, and overall state fiscal controls.
4. Authority for the overall administration of the University System and its institutions is vested in the Chancellor who is also the chief executive officer of the Board. Other professional members of the staff of the Central Office include the Vice Chancellor, with particular responsibility for instruction, the Executive Secretary, the Treasurer, the Director of Plant and Business Operations, and the Director of Testing and Guidance. These officials under the direction of the Chancellor work with the presidents and other officials of the institutions in developing programs and plans for consideration by the Board and in implementing Board policy.
5. The University System now operates 19 institutions of higher education. It will operate 23 when the four additional community junior colleges already authorized become operative.
6. Each institution has a plan of organization and
operations, generally in the form of Statutes and Bylaws, which is approved by the Board of Regents. These organizational plans and procedures vary with the level, size, complexity, and program of the institution.

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7. The University System Advisory Council, composed of the presidents and other designated administrative officials of the institutions, is presided over by the Chancellor. This council and its several committees serve as a coordinating body for many matters of common institutional concern and as a means of developing recommended System policies for consideration by the Chancellor and the Board of Regents.
8. For more than three decades, the University System
has operated effectively under a single governingcoordinating board -- through the depression years, through the World War II years, and through the postwar era of rapid growth in enrollments and dynamic expansion of programs and facilities.
9. Some problems are emerging, however, which can become
critical in the years immediately ahead as unprecedented demands will be made on the institutions in terms of rollment and services.
10. The growth in the number of institutions and the diversification of their programs raises the question of whether one board is adequate to give all the institutions the interest, direction, and assistance needed from a lay board. Some authorities are of the opinion that from 6 to 9 institutions are the most that a single board can oversee effectively, An alternative question is whether the central staff is large enough and adequately organized to perform functions which would make additional board attention unnecessary.
11. Several alternative approaches to dealing with the problem of "the span or control"~ or a sing~e ~uard are advocated by various authorities. One is to establish separate governing-coordinating boards for each of the three levels of institutions -- universities, four-year (or more) colleges, and junior colleges. A second approach is to give each institution its own governing board and make the single state-wide board a coordinating board for inter-institutional programming, bUdget coordination, and long-range planning. A third approach is to establish boards for each institution with advisory functions only and maintain governing-coordinating functions in the single statewide board.

- IV -
12. Another alternative not involving any changes in the board structure is to expand the central staff of the University System and bring about a greater emphasis on the coordinating and long-range planning functions of the Board and a de-emphasis of the governing functions.
13. A second emerging problem area is the relationships between the two state-wide boards. the State Board of Education and the Board of Regents. There are a growing number of overlapping responsibilities and areas requiring mutual cooperation. Examples of this are teacher education. adult education, relations between the vocational-technical schools, and educational television. These are in addition to the long-standing problems of articulation of high school and college curricula and the necessity for consideration of each other in making financial requests for state funds.
14. Dealing with such problems may require more formal organizational structures and practices than have existed heretofore. These might take the form of inter-board committees and councils. An even more fundamental approach involves consideration of establishing a single board for all of education.
15. Major changes in provision for the organization and administration of education should be approached with great care. Delicate balances of interests and relationships achieved over many years are not to be tampered with idly. It is urgent, however, that the responsible agencies and administrators develop programs for the systematic identification and analysis of such problems and that timely action be taken to deal with them.

ORGANIZATION AND ADMINISTRATION
GEORGIA'S PUBLIC SCHOOLS
The Constitution of Georgia creates the State Board of Education, the office of State Superintendent of Schools, the county and independent local school districts, county boards of education, and county school superintendents. Authority is granted through these offices to establish and maintain public schools.
The Constitution also prescribes the methods of selecting board members and superintendents and provides that their qualifications, powers and duties be determined by the state school laws.
The constitutional and statutory provisions have a direct effect on the quality and quantity of education which is provided Georgia children. A first step in the improvement of education in Georgia is to remove those constitutional and statutory provisions which impede progress and replace them with others which foster progress. Some of the provisions which may be questioned and their effects are analyzed in the following sections.
The State Board of Education
Georgia's State Board of Education with ten members, one from each Congressional District, appointed by the Governor with the advice and consent of the Senate. for seven-year staggered terms, is generally in keeping with accepted practice. More than half the states have similar provisions.
However, there has been a slight trend in recent years toward election of state board members by popular vote. Since World War II, six states have made this change, presumably on the assumption that election is more democratic and that elected boards are more responsive to the will of the people.
Authorities are by no means agreed on the preferred method for selecting state board members. The important concern is that highly able and interested citizens be on the board and that their policies and regulations effectively promote high quality education for the children and youth of the state. To this end the Commission and the Legislature might well study the possibility of
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ra~s~ng the qualifications of board members. Attention might also be given to methods through which board members can be kept well informed on educational problems and issues.
At present the only qualifications for state board members are that they have resided in Georgia for five years and not be employed by the board. an educational institution, or a textbook firm.
State Superintendent of Schools
The Georgia Constitution provides that the State Superintendent of Schools shall be elected at the same. time. in the same manner and for the same term as the Governor. Further provision is made that the superintendent's qualifications and pay shall be fixed by law.
In recent years there has been a national trend toward making the office of State Superintendent of Education a position appointed by the state board. Between 1947 and 1961. 13 states made this change. At present. the state superintendent is appointed by the board in 23 states and elected in 22 states. The Governor appoints the superintendent in 5 states. The Council of Chief State School Officers recommends that "major statutory responsibilities to be assigned to the state board of education should include the authority to appoint the chief state school officer and set his salary "l
The state superintendentis major functions are to serve as executive officer of the State Board of Education and to provide educational leadership to the professional personnel of the school systems of the state. In general. the function of the State Board is to make policy and the function of the state superintendenr-fs to administer the state's school system ~n accordance with those poiicies. The qualifications needed to carry out the superintendent's functions are administrative skill. and a broad range of ability and knowledge in many areas of education. Those who argue that the state superintendent should be appointed rather than elected point out that many people who possess these qualifications are not interested or willing to seek the position of state superintendent in a partisan statewide election. They also point out that the fact that the state superintendent must

1 The State Department
p. 7.

of Education j

The

Council,

1963,

- 3-
periodically seek re-election makes it impossible for him to devote full time to his educational responsibilities.
Many authorities also recommend that the qualifications and salary of the state superintendent be set by the state board of education rather than by statute. Statutory provisions tend to be minimal and rigid and are not easily adjusted to meet changing demands. The selection and appointment of top-flight personnel may require flexibility and certainly more than minimal qualifications.
Local School Districts
Many of Georgia's 159 counties are much smaller in area than those in most states, yet the Constitution designates each county as a school district with provision for independent districts within counties. While this may have been a good plan in times past, Georgia's shifting population, changing economy, an increasing demand for a variety of more advanced offerings, and higher requirements of teacher competence have changed the picture. Many counties have neither the children nor the revenue to support an adequate school system by today's standards.
Constitutional and legal provisions need to be removed which inhibit the development of districts of adequate population, and they need to be replaced with provisions which encourage larger districts. Only in this way will the children in all sections of the state acquire the education necessary to compete in today's complex world.
Immediate action toward larger school systems seems imperative. The following maps delineate the problem as it applies over the state.
Local School Boards
Most of the principles applying to the State Board in the foregoing sections apply also to local boards. That is, they should be non-partisan lay boards, representative of and responsible to the people, selected from the most able and interested citizens.

COUNTY SYSTEMS WITH AVERAGE DAILY ATTENDANCE UNDER 2000, 1962-1963
\-mITE ADA over 2000 Under
2000
source: ssttaatteistDiecpaalrtmseernvticoefs Education

-5

AVERAGE DAILY ATTENDANCE OF

INDEPENDENT SYSTEMS

(White ADA)

1962 1963
o Under 2000 e over 2000

DECATUR

GRADY

THOMAS

state Department of Education source:

-6-

AVERf\GE DAILY ATTENDANCE
(Negro ADA)
1962 - 1963
o Independent system under '2000 Independent or county system over 2000

WORTH
(0
cOl.OUITT
o
THOMAS
state Department of Education source:

- 7-
The Georgia provision that the county school board members be appointed by the Grand Jury is most unusual. No other state is known to have such a general procedu~e. Since the Grand Jury is not directly responsible to the people) its membership depending on an element of chance. the principle of democratic representation is absent. Most authorities recommend that local boards be elected at large by the people of the dist~icto
Evidence that some systems are aware of difficulties is shown in the number taking advantage of the provision for changing the mode of $electioho Most of the indepen-
dent systems and 48 co~nty systems now elect the board by
popular vote.
Local School 2uperin~pqeqt~
The Georgia Constitution provides for a county school s~perintendent to be elected by the people fo~ a term of office of fo~r years running concurrently with other county offices. The superintendent 1s the executive office~ of the county board of education. Qualifications and salary a~e fixed by law o
As in the case of the state superintendent above. th~ local superintendent is an executive and administrative officer serving a policymaking boardo The Council of Chief state School Officers recommends that he be appointed by the board) rather than electedo Local systems often are not able to attract weli qualified applicants for election.
Again~ an "able and interested!l board seeking a highly qualified superintendent D Who then is responsible to them, is most likely to serve the beet interests of the system c This is recommended by virtually all authorities and administrative groupso
There is not such agreement as to qualifications and salarYG It seems that broadly defined minimums might be set by statute with encouragement of local boards to foster high standards through graduated salary schedules with state support 0
A summary of the present method of selecting school boards and superintendents is shown on the following pages o

- 8-

School Board Members and School Supel;'irt'tendents Method of Selection
Georgia Public Schools - 1962-63 School Year

1. In 33 school systems Board Members and Superintendents are-elected (all are county systems).

In 38 school systems Board Members are elected who
appOTnt the Superintendent (15 county and 2:J indepen-
dent systems).

In 103 school systems the Superintendent is e},cted
and~ard Members are appointed by the Grand ury (all
are county systems).

In 3 school systems the Grand Jury appoints Board '
Memoers who then a,point the Superintendent (all ' ' are county systems ~. ,,' ,

5. In 14 school systems the City Council aP~oints the Boarer Members who then appoint the Super ntendent (all are independent systems). " ....

6. In 6 school systems {5 county and 1 independent) the
Board Members appoint the Superintendent, but Board Members are selected differently in the following manner:

Bibb County

- 12 are self-perpetuating; 4 are
ex off1'cio (Mayor - Ordinary - Judge's of Superior Court residing in Bibb , County)

Chatham County - 6 are apPointed by the City Council and 6 are appointed by the County Commissioners.

Clarke County

- Nominated by City Council, and County Commissioners, confirmed by Grand Jury.

Dougherty County - 2 appointed by the Grand Jury; 2 appointed by City Council; 2 i,peO~p&;q by County Commissioners; 1 appointe by other 6 Board Members.

Glynn County

- 5 appointed by the Grand JurYi 5
appointed by City Council.

Thomaston

- Independent - self-perpetuat1ng.

Source: State Department of Education

SELECTION OF
BORRDS OF EDUCRTION

SELECTION OF SUPERINTENDENTS

IIIIII

36% Ele.c.ted-

23 l!,\de.pe..nd.e.nt')

\0

i o..n.cl. Lt8countle.", ~

I I J llllJ 11lJ} 10% COMblfT\-hon! or 0le..thods- IS! I I I1dc.r.>c..li.ICtcnT. ( and 5 I ouni,es,

i 31% Rppc,nted-

J..- t-' '"-, ;-i-. n-. ~ :.~..J \ \ ~-~, ~ -..J .

I """ ...... '
I ..

i ._ "'"'...... 1"\. .
<:;.

!

a. t\ C!''--'_)v~

t
co un ties

Source: Co.lc.ulo.t01. ~I-C 0\ do..-t"o.. of' 5i-u.:+e. Oe.pccl,r+Ple.n+ o~'; Ed.uCo.+lon

- 10 -
Optimal Size for Schools and Systems
Dr. James B. Conant, former President of Harvard University and well-known educational writer, concludes from his study of American high schools that a high school must have a graduating class of 100 in order to meet minimum standards for a comprehensive program.
Dr. Conant states: "It will be a rare district where more than 25 per cent of a high school class can study with profit twelfth-grade mathematics, physics i and a foreign language for four years (assuming that standards are maintained). If a school has a twelfth grade of only forty and if indeed only a quarter of the group can handle the advanced subjects effectively, instruction in mathematics, science~ and foreign lan~ guages would have to be provided for a maximum of ten students. If the girls shy away from the mathematics and science as they do in most of the schools I visited, the twelfth-grade mathematics classes may be as small as six or seven. To provide adequate teachers for specialized subjects is extremely expensive. Furthermore, to maintain an interest in academic subjects among a small number is not always easyo Wide academic programs are not likely to be offered when the academically talented in a school are so few in numbero The situation in regard to the nonacademic elective programs in a small high school is even worse e The capital outlay for equipment as well as the salaries of the special vocational instructors adds up to such a large figure in terms of the few enrolled as to make vocational programs almost prohibitively expensive in schools with a graduating class of less than one hundred."l
Applying present attendance rates~ a Georgia high school must have an enrollment of about 500 in grades 9-12 to meet this standard. Maintaining this enrollment would require feeder elementary schools with some 1,500 pupils in grades 1-8 0 Thus we arrive at a figure of 2,000 pupils as the very minimum for a school system i grades 1-12. Since about one-fourth of our population is of school age, a school community of about 8,000 is necessary to support an enrollment of 2~000 pupils.
While this number might support a reasonable graduating class in ~ high school~ it will by no means
1 Dr. James B. Conant, The American High School TodaY9 p. 37-38.

- 11 -
SIZE OF SENIOR CLASSES DY RACE, 1962-63

Of 338 White Senior Classes:

Of 180 Negro Senior Classes:

103

Over 100 pupils

25
pupils or less

Fall below Conant's recommended minimum

Source: Statistical Services State Department of Education

21
Over 100 pupils

GEDRGJR'S[l~ODLSYSTEMS
CLASSIFIED BY RVERRGE DRILY RTTEr\JORf~[E

SYSTEMS \JtTH
I ROR UNDER 1000

, 55
19b

-.~~:.-. ' /'
.." _

-'~~-I .:::-----~.
~ -~--:~~.

-'... ,.~.~

- .~ .,' .-... ' ':.--"-<~~'~.:.,-~~

.--,"",c-t'"d,/z; ... .~."._. -.-."' -.',

' ':

SYSTEMS WITH
I ROR 1000-1999

, b4

f...J
f\.)

l 58

.. ~:::~~, ,. ;':'

. -.=: _-.~~~::"':"'"'"

... . . " - , . - .

-~_

SYSTEMS \JITH

R 2oJV) OH!EO '11'0 .w + f t '" .J.....

j \.

SOL1rce~ stcde Oe.pO-\tf't\e.r.t of Educ.a.t\on

27
I
I

78 IWhite
J Necp-~

- 13 -

COUNTIES OF LESS THAN 8,000 POPULATION IN 1960

11III Under 8,000
POLl<

WORTH COLOUITT

DECATUR

GRADY

THOMAS

Source: Georgia county Data Book

- 14 -
comprise an adequate system. In order to efficiently provide administrative, supervisory and guidance personnel, and the many other supporting services necessary in a modern school system, a larger enrollment is required.
A school system which contains several high schools of adequate size can support the services of valuable specialized personnel -- such as subject area supervisors, research staff, in-service groups for cooperative instructional improvement and curriculum development. Four high schools with 100 pupils in the senior class require a supporting population of about 32,000 by our rough formula. In 1960, only 26 Georgia counties had more than 32,000 population.
Some authorities suggest that for optimal efficiency an enrollment of 10,000 is needed -- and a population of 50,000. (Only 9 Georgia counties had populations this size or larger in 1960.) This provides for further specialization of personnel and facilities and greater economies in per pupil costs.
Creating Larger Educational Units
There are two different methods by which larger educational units can be created -- consolidation (merger) of districts and contracts between districts. In general these two methods are used to accomplish different purposes.
Consolidation
When a districtgs basic problem is simply that it is too small to provide an adequate program, the obvious remedy is for it to merge with another district in order to create a new, larger districto Since the early 1950's only a limited number of Georgia school systems have taken this action. In six cases a county system and an independent system located within the county have merged to create a single larger and more effective system o
Contracts
The "contract" method has been used to meet the needs of students who can be educated better or more efficiently by neighboring systems than by small schools within the home system o There are now 29 systems having contract with neighboring systems for white pupils, and 31 systems having contracts with adjoining jurisdictions for Negro pupils.

- 15 -
Contract arrangements work well for small numbers of children in district "border" situations, but they do not solve the problem of providing systems of adequate size for reasonable enrollment and resource base. This can result only by combining small districts and consolidating small schools without regard for present county and independent district limits.
The consolidation and contract arrangements complement rather than substitute for one another. Large districts would probably need to contract for education of some children near their borders. Both mergers and contract arrangements are needed to improve the situation.
School Laws and Regulations
"Project Instruction," one of several large scale studies sponsored by the U. S. Office of Education during
the past several years and published in October 1963, in-
cludes among its recommendations the following two which are especially pertinent to Georgia and this Commission's study:
1. State legislatures should set forth general goals for the schools, provide adequate financial support, and delegate broad powers of implementation to the state and local educational authorities. The state legislature should not prescribe curriculum content or legislate specific courses.
2. Local school boards are the legal instruments through which the state fulfills its responsibility for education. The distinction between lay control of school policies determined by the board of education and implementation of these policies by the professional staff, with the leadership of the local superintendent, should be delineated, understood, and respected.
These recommendations concerning the proper roles of legislatures, school boards, and professional staffs indicate that these matters are national problems. There are evidences that the principles involved are being violated in Georgia.

16 SYSTEMS WITH CONTRACTUAL
ARRANGEMENTS FOR WHITE PUPIL~,
Circles repre~~nt independent SystemS
Arrows indicatr~ system to vlhich pupilS contracted

DECATUR

.J,

GRADY

THOMAS

- 17 -

WORTH
."
COL/JUITT

GRADY

THOMAS

1

1

1

1

SYSTEMS WITH CONTRACTUAL

1

ARRANGEMENTS FOR NEGRO PUPILS. 19631
1

1

Circles represent 1

independent

1

systems

1

Arrows indicate system to ItThich

1

pupils contracted 1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

- 18 -

The interference of school boards in administration
of schools is cited as a major cause of removing schools from accredited status ol Board members must observe the limits of their functions, and perhaps restudy of the legal restrictions and allocations is now necessary. The
recommendations also lend emphasis to the necessity for superintendents with high professional qualifications one of their functions being the "education" of their
boards.

The role of the State Department of Education in
leadership of local systems in conforming to statutory and State Board regulations is of prime importance. Since the organization and administration of the State Depart-
ment of Education is being studied in detail by other groups, consideration of it is omitted here.

Even a cursory examination of the Georgia school laws

discloses many instances of legislation requiring the teach-

ing of various sUbjects -- ranging from the study of animals.

bird and fish life, to Americanism o Detailed requirements

are in the statutes for holidays, immunization of children,

special programs for handicapped, and other matters not

usually considered the forte of legislatures in modern

school laws. Many of these laws date back to 1919 or

earlier. Instances of overlapping and disparity among laws

are also to be foundo

.

Laws exist which have been ineffective and difficult to enforce. An example is the provision requiring ~he State Board of Education to be the certificating agency for all
universities, colleges~ normal or professional schools operating in the state o (Section 32-415.) The question also arises whether this certifying function should be
assigned to the Board of Regents of the University System instead of to the State Board of Education.

It is generally agreed among educational administrators and legal advisers that the school laws need revision and recodificationo The up-dating of laws, school board regu-
lations, and administrative procedures all along the line is essential for efficiency and effectiveness in education.

1 Statement by W. Eo Pafford~ Secretary, Georgia Accrediting Commission. October 18, 19630

- 19 -
ORGANIZATION AND ADMINISTRATION
PUBLIC HIGHER EDUCATION
The most striking characteristic of the organization of public higher education in Georgia is the fact that all state-supported institutions are placed under the jurisdiction of a single governing board. This board is created, given corporate status, and vested with almost complete authority by constitutional provisions supported by statutory acts o Georgia was one of the first states in the nation, and is still one of only 6~ to place all state-supported higher education institutions under one board and give it comprehensive governing powers.
The Board of Regents
The members of the Board of Regents are appointed by the Governor and confirmed by the Senate. One member is appointed from each of the ten Congressional Districts and five are appointed from the state at large. Term of office for Regents is seven years or until a successor is appointed. Comparing these provisions for the Board of Regents with practice in other states~ it has been found that nation-wide,
out of the 70% of board members who are appointed, 69% are appointed by the Governor and confirmed by the Senate. 18%
of such governing boards have elected members while 12% have ex officio members o The size of board membership ranges from a low of 3 to a high of 102 j with an average of about 11. The average term of office of higher education board members is 6 years and provision for overlapping terms is a general practiceo 1
The Constitution vests in the Board of Regents complete authority for the government~ control, and management of the University System of Georgia and all of its institutions. As such, it is the governing board of each institution and the coordinating board for all institutions.
1 U. S. Office of Education, State Boards Responsib~e for Higher Education~ po 24-3~

- 20 -
More specific functional areas of responsibilities of the Board of Regents include:
- Basic policy making.
- The establishment or discontinuance of institutions.
- The preparation and submission of budget requests to the Governor and the Legislature.
- The allocation of funds to institutions.
- Financing of current operations and bUdget control.
- The planning and financing of facilities.
- The selection of administrative personnel and the approval of all professional personnel, including faculty.
- The determination of role and scope of institutions.
- The approval of all new programs of institutions o
- The governing authority over all aspects of existing programso
The Board of Regents has adopted a set of bylaws for its own operations. l These bylaws provide for regular meetings of the Board once a month, on the second Wednesday, and for special meetings on call. Eight (8) members constitute a quorum for the transaction of business. The officers of the Board are the Chairman, Vice-Chairman, Chancellor, Executive SecretarYj and Treasurer; each with terms of office for one year j except the Chancellor who holds office at the pleasure of the Board. The Chancellor is designated the chief administrative officer of the University System as well as the chief executive officer of the Board of Regents.
I "By-Laws of the Board of Regents of the University System of Georgia", adopted November 8, 1950.

~ 21 -

Six standing committees are established to study problems and needs within designated areas of responsibility for the purpose of making reports and recommendations to the entire board. These standing committees are~
Committee on Finance Committee on Building and Grounds Committee on Education Committee on Organization and Law Committee on ResearJh and Extension Committee on \Tlsitation

The Board of Regents also authc~jzes special committees from time to time when p in its judgment n this is desirable. All standing and special cQlflmit;tee~l have as ex officio members the
Chairman of the Boaru~ who has authority to vote and the Chancellor>! who does not have s'Jch authorityo

The Central Office Staff __ ...... x d, ;"L ..~,_(~_;:z:,,,_
The Central Offic2 Staff oos1sts of five major officials j their assis tar'tG :i'cd f < ',(;a c at ac'S c}_erlcal personnel. In addition to t ~han:el10:1 here are the Vice-Chancellor with specj responsibility for instructional programs~ the Exe utlve Sec ltarr~ the Treasurer~ the Director of Plant and Business Oppratuns l and the Director of Testing and Guidance.

Board bylaws specifyi"EspO,:Slb c Ut1,:,';:; and duties of

the Chancellor\) Exec,/civ6 SeCl'etalV and the 'I'reasurero

All other members of the Central Of ce Staff are assigned

their duties and respoDsibili 1es

speclfl~ board action

or by the Chanc~llorc

The Chancellor~ as chl.ef adm:nistrat1ve officer of the University System and chief executive officer of the Board of Regents s has the following responsibilities and
duties~

- The prompt and effective execution of all Board resolutions~ pollcles~ rules and regulations.

- Attendance at and partie a~ion in all meetings of the Board and its ~ommltteeso

- Recommending l,;c; the 30a;".1 appointments ~ promotions. salaries 8 transfers~ 2~3 naiaDs and dismissals of all Central Orf1~e anu ina~lt lonal personnel o

- 22 -
- Membership on all faculties and other academic bodies of the University System, including the right to call meetings of any such councils, faculties or committees at any time.
- Decision-making power with regard to all questions of jurisdiction of all councils, faculties, and orficers of the System and its institutions, which are not specifically defined,
- Veto power over acts of all councils, faculties, or committees of institutions.
- The preparation and submission to the Board of Regents of such annual and special reports concerning the University System as may be required.
- The administrative channel through which reports, recommendations~ and suggestions originating from institutions, faculty members, employees or students are presented to the Board of Regents.
- Recommending to the Board of Regents both allocation of state appropriations and institional
budgets~
The Executive secretar~ attends all meetings of the Board-and its committees an is responsible for keeping an accurate record of the proceedings of these. In addition, the Executive Secretary is custodian of the seal of the corporation, affixes the seal to those documents requiring it, and attests thereto by his signature. He is also custodian of all deeds and evidence of title to tangible property of the University Systemo All other powers and duties of the Executive Secretary are either specifically authorized by the Board or assigned to him by the Chancellor.
The Treasurer is responsible for the receiVing and disbursing of funds, for the preparation and efficient operation of a system of uniform financial reports, for the requisition of state and other funds and for their distribution, and,.in general for financial accouriting. Inadd1tiQn, he is responsible for lnSU!'ance matters, for the bonding of personnel and the custody of such bondS, and for the control of trust funds o He is responsible, through the Chancellor. for itemized reports to the Committee on Finance on the status of trust funds and for recommendations as to their sale and investment or reinvestment. The chief function of the Treasurer is to work with the Board, its Committee on Finance, the Chancellor, and the presidents and

- 23 -

fiscal officers of the institutions in developing fiscal policies, plans and programs for the financial operation
of the System"

The Vice-Chancellor shares the responsibilities and
functIons of the Chancellor as they are assigned. This office has a particular responsibility for the instructional
program. including curricula~ the improvement of instruction, and the selection and development of academic personnel. Much of the Vice-Chancellor~s activities is concerned with the work of the various system and institu-
tional academic officials, committees and councils.

meThe Director of Plant and Business operations works

with

noard of ~gents a~its commIttee on nuIldings

and Grounds, the Chancellor~ the institution presidents

and their bUilding and grounds~ officials in defining

needs for physical facilities in developing plans to meet

these needs. and in improving efficiency of operation and

use of facilities. Involved in this process is the con-

struction of new facilities and the renovation of eXisting

ones.

The Director of Testing and Guidance has the responsibility-for conductIng studles-and developing programs of testing and guidance directed toward the improvement of
procedures for selecting and admitting students to insti-
tutions. for academic advisement and general guidance of students. He works with the Board of Regents, its Committee
on Education. the Chancellor 9 the presidents of institutions and their admissions and counselling officers in conducting
studies and making plans to accomplish these ends.

Institutions of the University System
The University System now operates 19 institutions
of higher education and with the opening of the 4 addi-
tional community junior colleges now authorized will operate a total of 23. There are two university-level institutions. one of which is a combined state university and land grant college and the other a professional technological institution which operates a two-year branch. There are 9 institutions classified by the U. S. Office of Education as "four-year (or more)" colleges. Two junior colleges are now authorized for conversion into four-year colleges which will make a total of 11 in this classification. There are 1 two-year colleges at the present time. As two of these are scheduled to become four-year colleges~ when the four new junior colleges

ORGANIZATION OF GEORGIA PUBLIC HIGHER EDUCATION

stitution ard3
2-year college
(1)

r

-----
DeKalb County

1I

I
I

Board Educa

t ioofn 4

I

r ---' L.._-

'2-year - - 1

I college

I

L

-~J

r

University

level

(2)

institutions

Electorate
T

Governor

I

Board of Regents University System
of Georgia

I
Separate profesional medical school (1)

T
4-year 0""1 more colleges
(9)

J

l\J -!::"

2-yea-:s r colleges':::
(7)

I
ISta te univ. and Iland grant collIege combined!

~t
Professional technological school
T
2-year branch

1 3 Negro units, 1 of which is land grant college; 4 units offer master's degrees and 1 unit offers 1 doctorate degree; 2 additional units converted from eXisting Junior colleges by 1967.
2 4 additional units approved.
3 Georgia Military College.
4 Approved and under construction.

sification of institutions according to definitions of U.S. Office of ucation, State Boards Responsible for Higher Education.

- 25 -
authorized are added there will be a total of 9 two-year colleges. There is one separate professional school, the Medical College of Georgia~ whose program, in addition to training physicians, includes instruction and research in basic medical sciences, nursing and other allied fields. It should be noted that outside the University System, there is a two-year college operated by its own board, which has some public support from local funds, and that another two-year college~ now under construction, is scheduled for operation under the DeKalb County Board of Education.
The Executive Heads of Institutions
The Bylaws of the Board of Regents. designate the president of each institution as the executive head with overall responsibility for leadership, direction and supervision of the institution. The president's line of communication and responsibility is to the Chancellor. The president is also the ex officio chairman of the faculty, and is the official medium of communication between the faculty and the Chancellor o
Faculties of the Institutions
The Bylaws of the Board of Regents specify that the faculty of each institution will consist of the president, deans and directors~ members of the faculty with academic rank, members of extension and research staff, treasurers, registrars, librarians~ and similar officials. The facultiesof the institutions are authorized and required by the Regents i bylaws to make~ SUbject to the approval of the Chancellor and the Board, rules and regulations for their government and procedure and for that of the students. Faculties establish such committees as may be required and prescribe regulations for admissions, classes, courses of study and requirements for graduation, and other such regulations as "may be necessary or proper for the maintenance of higher educational standards." In addition, faculties are authorized to make rules and regulations regarding student pUblications, athletics, inter-collegiate games and a wide variety of other student activities ahd social events and organizatdons o
University System Advisory Council
Dating from the establishment of the University System,

- 26 -
there has been concern for the effective coordination of the institutions and their activities o The first survey report made by a group of higher education consultants in 1932-33, recommended the establishment of university councils as follows~
"For the paramount purpose of promoting that internal integration of the University System which is the product of mutual understanding and complete cooperation of individuals t it is recommended that steps be taken to organize under the direct!on of the Chancellor a series of
University councils representative of the
institutional~ educat~onal~ and scientific interests concernedo"l
The second survey of the University System under the direction of George Ao Works noted some weaknesses as well as achievements of the council and made recommendations for its more effective operation o The third survey of the University System~ made in 1949 under the direction of George Do Strayer 9 made an even stronger statement about the essential nature of the University Advisory Council and other such inter-institutional councils and committees. A special note said in part~
" it is highly important to use such agencies and mechanisms as will knit together in the most effective manner the interests of the respective institutions of the System in the common cause -which is the support and development of higher education in the State in the optimum degree as an aid in the policy-making function of the Chancellor~s office such a consulting j advisory body seems indispensable o"2
The Advisory Council of the University System as presently constituted is composed of the Chancellor as the

1 1 Coffman, Lo Dos ~t alo~ Re 0rt to.the Board of Regents of the University System of Geor~a~ po 22-23.

2

Strayer. George DOj et alo j A University System of Georgia,

Digest
po 114

0

of

a

RepoFt

of

a Survey

of

the

- 27 -
presiding officer, the Vice-Chancellor, the president and administrative dean of each senior college, and the presi. dent of each junior college o The Advisory Council has the general power to make recommendations to the Chancellor concerning all educational and administrative matters of concern to the University System o More specificallY, these powers include the making of recommendations regarding:
- Establishment or discontinuance of divisions or departments of institutions of the University System.
- The manner in which funds shall be distributed among the several institutions of the University Systemo
- Questions of inter-institutional relations and of relations with other institutions of learning o
- Conditions governing the admission of students to institutions and the conferring of degrees by institutions.
- Regulations governing the transfer of students and their credits from one institution to another.
- Conditions governing scholarship and fellowship grantso
- Regulations governing faculty employment, tenure~ promotion and dismissal.
The Advisory Council creates standing and special committees as it deems them needed. In general, these committees are classified as academic or administrative. Illustrations of academic committees include agriculture and forestry, business administration, engineering, and graduate programs and research o Examples of administrative committees include the alumni affairs, educational policy at the junior college level. faculty personnel, and finance and budgeto These committees study problems that fall within the province of their assignment and make recommendations to the Advisory Council o
The Advisory Council is a means whereby the staffs of institutions can bring to bear their professional

skill, experience j and jUdgment on matters of system-wide interest and concern and thus make a real contribution to policy-making o In addition~ many improvements in mutual understanding and cooperation can be made which do not require broad policy changes 0
Some Possible Problems and Alternative Approaches
Georgia has operated its state-supported higher institutions under a single governing-coordinating board for more than three decades o The System has functioned effectively through depression through the World War II years, through the rapid expansion of enrollments caused by an influx of veterans following World War II~ and through the period of dynamic expansion and improvement of programs, facilities j and enrollment of the mid-1950 us and early " 1960'so Ao J o Brumbaugh~ one of the most noted authorities and experienced consultants in the field of higher education, in a recent pUblication; State-Wide Planning and Coordination of Higher Education j made this statement about GeorgiaVs sIngle board plan:
"To the credit of the board it should be said that on the whole it has discharged its responsibility so effectively that there is no disposition on the part of the institutions; citizens or the Legislature to seek changes in its functionso"
Some problems are emer~ing, however., WhIch can becoJ!le critical in the years immediately ahead o The first problem arises from the growth and expansion of the program of the University System itselfo The growth in the number of institutions and the diversification of their programs raises the question whether the central staff will be large enough and organized adequately to perform its functionso It even raises the question whether a single board will be adequate to give all of the institutions the direction and assistance needed from a lay boardo
In a recent study Martorana and Hollis addressing themselves to the question of the span of control of a single board said:
"There is a limit., however j as to the number of institutional units which a governing-coordinating board can oversee effectivelyo The limit depends on the complexity of the programs offered by the institutions and the size of their enrollmentse

- 29 -
In general~ the authors are of the view that from 6 to 9 colleges are as many as a single board can effectively govern." 1
It should be emphasized that this is a generalization of the authors only~ but it is based on study, experience and observation. Other authorities in higher education have similar concerns about the number of institutions which can be adequately governed and coordinated by a single boardo
To cope with this problem~ higher education authorities are suggesting a number of approaches. and different states are using a variety of them.
One plan is to establish a separate state-wide governing and coordinating board for each of the various levels of institutions. Thus 8 there would be one board for university-level institutions~ one board for four-year colleges and one board for junior colleges.
This approach still leaves the problem of coordination between the institutions under the separate boards. A variation of this plan is to establish a single overall coordinating board without governing functions and sub-boards for the different levels of institutlons o Sub-boards would have governing functions primarily with coordinating functions limited to the single level of institutions under each o
Another suggestion which has many proponents is to establish a separate board for each institutional unit to serve as a governing board onlyo Over these boards there should be a state-wide coordinating board for "inter-
institutional program~ing~ budget coordination, and .
long-range planning o "
A third approach is to maintain the single governingcoordinating board~ as exists in Georgia. but to reorganize the central staff and bring about a new emphasis on coordination and long-range planningo Under such a plan there would be an Assistant Chancellor or a Coordinator for ~ach
1 U. S. Office of Education~ State Boards Responsible for Higher Education~ p. 490
2 Ibido

- 30 -
level of institution and the installation of a well-financed research and planning section for long-range planning and coordination.
One of the dangers of such an approach is that it may
destroy the delicate balance between the authority of the president. other administrative officers and faculties of institutions and that of the central staff. The vast majority of authorities in higher education agree that the sUccessful operation of institutions depends upon granting them the widest possible authority and initiative in oonducting their own affairs. Central boards and expansion of central staffs, in general; need to be accompanied by a de-emphasis of the governing function and re-emphasis on cooperative study~ long=range planning i coordination. and pUblic advocacy.
Brumbaugh~ in the publication previously cited, presents a concise and significant summary of requirements for effective state planning:
"A state must adopt a formal approach to state~w1de planning and coordination to achieve excellence and to gain the highest possible return for every dollar invested in higher education.
"Whatever the organization for state-wide planning and coordination ~ay be~ it must grant higher institutions the largest possible degree of autonomy within the limits of general policies necessary for a coordinated state system of higher education.
"A state planning and coordinating agency must have a clear concept of planning and coordination.
"An Agency must .limit itself to planning and polioymaking and leave institutional management to other bodies.
"Members of the board of a state agency must be the highest type of citizens who divest themselves of partisan politi~so
"An agency must maintain effective liaison with the institutions~ the legislature and the publioo
"The agency must determine criteria for the establishment of new institutions and programs.
"The agency must have a competent staff.

- 31 -=
"The agency must have adequate financial support~
"The agency must involve private institutions of higher learning as well as pUblic institutions in planning and coord1nat1on o
liThe agency must be suited to individual needs and problems of the state it ~erveso"l
A second emerging problem area is involved in the relationships between the State Board of Eduoation and its
responsibilities, and the Board of Regents ana its responsl-
bilitieso Although all of education is largely supported from state funds and there are numerouS examples of cooperative effort between the two departments in developing financial programs and in operations~ there 1s sometimes a polite but natural rivalryo There are some overlapping functions and responsibilities o Teacher education 1s a major one; the growing field of adult education is anothe~; and still a third, the one that appears to be causing the greatest concern at the present time~ 1s the relationship between the new area vocational-technical schools on the one hand and the community junior colleges on the other. There is a strong possibility of duplication and overlapping of content of the programs offered by the two types of institutions; competition can develop for local support of varying kinds; and there is definite reason to believe there will be competit40n in the recruitment of students.
Examples of close-working relationships between the two departments include such things as the sharing of educational television facilities and time between the State Department of Education broadcasts to the s~hools during the day and the University System broadcasts to adults during the evening hours and the cooperative planning for the improvement of teacher-education programs through the Teacher Education Council,
Areas of duplication~ competition and cooperation indicate B need for close~ and probably~ fo~mal working relationships between the boards~ their central staffs, and their operating unitso Consideration of these and other factors has caused some observers to suggest the possibility of only one board of education for elementary,

1 Brumbaugh ~ Ao ~T 0 ~ State-Wi-de Plannin'g andCoot~'din'ati'on

of Higher Education~ po Vrand VlI o

-""'"

- 32 1M

secondary and higher education~

This step was suggested in a report to the General

Assembly of Georgia by a special committee on education.

January 1, 19~1e This report made the point that admin-

istration is most efficient when like functionS or

activities are grouped together under a single oontrolling

agencYe policies

It stated that can be adopted

under which

a u

sin nite

gle ra

t

bo he

a r

r

dth9anb

r

oad d1v

i

d

e

efrort on behalf of public education; it argued further

that, "Close relationships and integrated or coordinated

efforts can be more effectively achieved through a single

govern1ng body than when the development of specific aspects

ot education 1s diffused among two or more responsible

ageno1es," and that division of authority leads to "lack

of ooor ineffec

dti1vneataiocntieondcu"pll

ica

ti

o

n

of

effort"

and

consequent

MaJor changes in the organization or education should be approached With great caree Delicate balances of . 1nterests and relationships achieved over many years are not to be tampered with idlyc Most major changes in organization and administration occur because of crisis situations created by problems which are not identified early enough and dealt with adequately by existing organizational and administrative arrangements o It is therefore urgent that responsible boards and administrators with vested interests 1n present arrangements develop programs for the systematic identification and analysis of such problems and take timely action that will direct intelligently the course of events rather than endure hasty and radical reorganization 1n crisis situationso

1

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION
100 MITCHELL STREET, s. w.
ATLANTA, GEORGIA

STAFF MEMORANDUM NO. 6

G E 0 R G I A'S

MIN I MUM

N D A T ION PRO 0 RAM

FOR

U CAT ION

(PRELIMINARY DRAFT - SUBJECT TO REVISION)

NOVEMBER 4, 1963

ERRATA SHEET STAFF MEMORANDUM NO.6, PAGE 1
The means of computing local support given here is the original formula based on a 7 mill levy on the state tax digest -- used because of availability of examples. The present method is to compute on the basis of 85% stat~ and 15% local proportion of the total expenditures for the allotment of teachers, ~aintenance and operation, and transportation.

GEORGIA'S MINIMUM FOUNDATION PROGRAM FOR EDUCATION
1. Georgia's Minimum Foundation Program for Educat~on needs to be revised and brought up-to-date in ways which will assure equality of opportunity for all children and equal effort by all school systems.
2. Many school systems are not providing their fair share of local support for their schools.
3. There is a wide range in the per pupil expenditures
among the systems, indicating disparity of quality of instruction. 4. The great variation in tax assessments and millage rates among systems complicates the application of an equalization formula and the assuring of "equal effort." 5. Provisions of the formulas for allotments are criticized as discriminatory in terms of population density and degree of efficiency of operation. 6. Some criticisms relate to lack of adequate state control and collection and expenditure of funds, audits, and efficiency factors. 7. School transportation data show a great variation in per pupil costs, routing practices, purchasing plans, and other evidences of need for revision to bring uniformity and efficiency.
-I-

GEOHGIA! S T:q.N~r\mf;1 F9U!iDAT~ON PROGRAM FOB EDUCATION
The Minimum Foundation Program in GeQrgia proposes to provide a minimum level of educational quality for each
child in the state =~ regardless of social and economic con-
ditions in the local area in which he liveso Taxes collected by the state are redistributed to local districts according to ability to pay as measured by a multi-factor formula.
The intent has been to assure that each local district rich or poor -- can have good schools by exerting the same degree of local effort. Since ~he one major source of revenue for local government in Georgia is the ad valorem tax. the value of property might seem the logical base on which to devise a measure of effort. That is. given equal property valuation i an equal tax rate would represent equal effort.
However i Georgia counties and cities traditionally have had an almost endless variety of tax assessment and collection arrangements 0 Some have low assessment of value -- using anyone of several percentages of actual value -- and high millage rates. Others have higher assessments and lower rates. Since most counties have homestead exemption~ many property owners in low-assessment counties pay little or no school taxc
Thus the problem of requirlng each system and taxpayer to pay a fair share of the cost cf education is a difficult one. 'l'he elaborate economic index of the lVIFPE was devised to correct this difficulty, The following sections give evidence of some of the points of difficulty,

The required local effort fo~ the entire state under

MFPE is determined by applying 7 ~illB to the State School

Tax Digesto This 7 mills formula was designed to require

only about 50% of the local districts" economic ability to

finance their schools s leaving ~he remaining 50% of their financial ability available for local enrichment programs 0

Therefore when ea8h school districtls share of total re-

quired local effort is established by use of the economic

inde one

x o

9
b

and tain

s

t

he ea

c

re h

SUlting school

local distric

re t'i

q s

uired "exp

effo ected

rt lo

is ca

l

doubled. support

0"

The school district~s actual 1962-63 tax collections and

appropriations expressed as a percentage of the district's

"expected local support'! is a measure of its effort divided

by its ability in supporting public schcols.

=.L =

- 2-

A system having tax collections and appropriations equal to its "expected local support" would rate 100%. Below 100% indicates the system is collecting less taxes
than its "expected local support;" above 100% indicates the system is making a greater financial effort than its "expected local support."

Local Effort as Percent of "Expected Local Support"
Over 110%
91 - 110 71 - 90 50 - 70 Under 50

Number of County Systems
22
29 62 40
6

There are 6 counties which do not even finance their required local effort o There are 108 counties which fall short of financing their "expected local effort" by more
than 10%. In the 91-110% range are 29 counties whose looal effort falls close to "expected local support." In the 22 counties which exceed "expected local support" by more than
10%, there is tremendous variation: from Brooks County which spent 115% of its "expected local support" to Fulton County
with 385%. These are the systems which supplement MFPE
considerably.

Local Effort as Percent of "Expected Local Support"
Over 119% 100 - 119
80 - 99 50 - 79 Under 50

Number of Independent Systems
11 8
12 6 1

- 3-
There are 19 independent systems which fall short of financing their "expected local effort." One of these does not even finance its required local effort. There are 19 systems which do more than financing their "expected local effort." ranging from Waycross with 105% to Atlanta with 185%0
Over two-thirds of the school systems fail to finance their "expected local effort" primarily because property assessments and/or millage rates are too low.

Assessment as Percent of True Market Value 1962 Tax Year
Over 39%
30 - 39
11 - 29
Under 11

county Systems
Millage Rates 5.62 - 15000 7070 ~ 22.12
15.00 - 20 0 00

Assessment as Percent of True Market Value 1962 Tax Year
Over 39%
30 - 39
11 - 29
Under 11

Independent Systems*
Milla~e Rates 1032 - 15.00 6.40 - 20.00 7.50 - 20000 6 0 00

* Data for one system is not available. Source~ State Department of Education.

Number of Systems
13 32 99 15
Number of Systems
16 13
7
1

_ II -

LOCAL EFFORT AS PERCENT OF "EXPECTED LOCAL SUPPORT" COUUTY SYSTEr'1S - 1962-63
o Under 50%
50 - 90.99%
illIilll 91 - 110.99%
m111 - 130.99%
131 ~ Over

ECHOLS

Source:

statistical Services, State Department of Education.

- 5-
In 1962-63 (1962 tax year). Georgia~s school systems,
with these varying assessments and levies_ collected $73.658~579037 for maintenance and operation of schools. If the digests of all school systems had been adjusted to 40% of "true market value" and 20 mills had been levied
thereon~ the collection would have been $112.6459656.44, or an increase of 52 0 9% over the actual collection o This
potential increase in terms of increase per child in ADA would have been $L3 0 42 0
Percent of Local SB:S'.ll
The percent of local support~ based on total cost per child in each system in 1962~63j varies tremendously.

Percent of Local, Suppo!:t
Over 23% 15 ~ 23
Under 15

Number of
':illly Slstems
13
40
_,,06

The percent of local support in county systems varies
from 8 0 2% of total cost per child in Catoosa County to 54.8%
in Fulton Count Yo

Percent of Local Suport
Over 4Lt %
35 ~ 44
24 ~ 3 i4
15 - 23
Under 15

Number of 1J2~l2.t;.l}den!... Sys tems
6 8
11 10
3

The percent of local support in independent systems varies
from 505% in Jefferson to 66 07% in AtlantaD

-6

PEHCEHT OF LOCAL SUPPORT (uased on total cost

per child, 1962-63)

COUN'lly SY S'llEfv1S

C\


Under 15% 15 - 23.99% 24 - & Over

""LLER

WORTH

MITCHEll.

COLDU'TT

- DECATUR

GRADY

Source:

Statistical Services) state Department of Education.

K HARRIS

LOCAL SYSTEtllS I REVENUE PER CHILD ABOVE

STATE AVERAGE OF $82. 04 , 1962 - 1963

(county systems)

Amount each above state

average given below:

Bibb Chatham
Clarke Coweta DeKalb FUlton Glynn !JiUSCogee Richmond

$ 5.23 16.39' 28.96,
10.21
39.42 ' 133. 07,
20.67 7.42 '
- 7.58 ,

WORTH COLQUITT

DECATUR

GRADY

THOMAS

UHOLS

sSttaatteistDiecpaalrtmSeernvt icoefsEducatiOn

1
1

_8-

ABOVE 1

LOCAL SYSTEMS' STATE AVERAGE

REVENUE
OF $82.

0P4E,R

CHILD
1962 -

1963

1

(Independent systems)

1

Amount each above state

1

average given below:

1

Atlanta

$147.90 1

Bremen

60.19

cartersville Chickamauga

2288.3. 20111

Dalton Decatur

12282..65001

Gainesville 40.83 1

laGrange I'1arietta

219..7758 1

Newnan Rome

1245..35781

Tallulah Falls
Thomasville Toccoa Trion

192488..32747128111 1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1

1 WORTH
1

1

cOLQUITT

1

1

1

DECATUR

GRADY

THOMAS

1

1

statistical Services Source: state Department of Education

- 9-
The actual amount available per child from local revenue also varies tremendously among the systems, from a low of $3.86 to a high of $276.31. 1 The average amount available per child from local revenue for the state is $82.04. Only 24 systems (9 countIes and 15 cities) are above this average, with the remaining 173 systems (150 counties and 23 cities) below the $82.04 average. The systems exceeding the average are shown on the accompanying maps.
Teacher Salary Supplements
Only 68 systems (32 independent and 36 county) provide some supplement to MFPE teacher salaries. These systems employ 37% of the state's teachers. The remaining 129 systems which provide no supplements employ 63% of the state's teachers.
Pupil Transportation
MFPE also provides funds for maintenance and operation of pupil transportation. Distribution of state funds takes into account a minimum salary schedule for drivers, number of transported eligible students, and density of transported pupils per square mile in the county. A complicated calculation determines the final allowance of state funds on the basis of "the median cost of transportation per pupil in the particular density groups or sub-groups to which that unit belongs." (Georgia Code, Section 32-611.)
There is great variation in costs of pupil transportation among the various systems. The per bus mile cost of pupil transportation in 1961-62 varied from $.50 in Clayton County for white schools to $.10 in Habersham County for Negro schools. The average per bus mile cost was $.298. The per child cost in 1962-63 varied from $68.81 in Baker County to $13.79 in DeKalb County with an average per child cost for bus transportation of $33.03. Some of these cost differences result from differences in population density, but part of the difference can be attributed to lack of uniformity in pupil transportation programs among the many systems. There are presently no statewide specifications for purchase of buses, nor are they purchased centrally, or on equal price bases. Insurance coverage varies tremendously from system
1 This amount is raised in a small system having within its borders a large utility plant. The system with the next highest amount has $229.94 per child from local revenue.

- 10 -
to system. The State Department of Education has no mandatory power ta require bus surveys to determine current most economical pick-ups of children in relation to locations of schools.
With the present lack of uniformity in transportation programs among the systems, the allocation of state funds to the various systems cannot be completely equitable to all systems. Since the allocation of funds is based in part on maintenance and operation transportation expenditures, a system with relatively low expenditures due to economies in purchases of buses -- and thus lower depreciation allowances -- will receive relatively less funds than a system not making such economies.
The present law specifies that the state will finance 85% of maintenance and operation transportation costs, and the local systems 15%. The 1962-63 state expenditure to local systems was $15,522,200. The major portion of financial support for local transportation comes from state funds; yet the State Board of Education has little control in achieving uniformity in organization and operation of pupil transportation.
Summary
Some points which can be made concerning the operation of the present Minimum Foundation Program are as follows.
1. Property assessments and school revenue are unrealistically low in many systems.
2. A local district which happens to have, for example, a large utility plant within its borders, profits at the expense of neighboring areas.
3. Many systems are not actually collecting and appro-
priating the amounts indicated as required local effort.
4. Many systems are not spending the "enrichment" funds necessary for high quality schools.
5. Many local systems are not providing supplements to
minimum salaries, thus allowing the best teachers to be siphoned off to systems making greater efforts.

- 11 -
6. Many schools are operating at inefficient teacher-
pupil ratios -- encouraged by density formulas.
7. Extreme differences exist among systems in trans-
portation costs per unit.
The above illustrates some of the difficulties in administration of the MFPE. Other common complaints and criticism aimed at the plan are as follows.
1. The method of figuring the required local effort for school systems is too complicated. This gives rise to much misunderstanding and ill will.
2. There are too many equalization factors in the formula, making fair distribution difficult.
3. There is no machinery in the law to force a school
system to give the local support for education which it should provide.
4. The method of allotting teachers to school systems is too restrictive and does not include all essential personnel.
5. The law provides no machinery for eliminating ineffi-
cient or extravagant administrative units.
6. The method of calculating transportation funds is too complicated and supports inequities.
Many other complaints relate to the inadequacy of funds to support the full program at reasonable levels; e.g., textbooks, maintenance and operation, grants-in-aid to teachers, and the like.
The improvement of the MFPE depends on modernizing and tightening the provisions so that an adequate school program is supported, a fair share is borne according to ability, local systems are encouraged to improve quality of education beyond the minimum, and support is given to continued effort and improvement.
Since such a program is necessarily complex, it is suggested that the Commission's recommendations be in general terms and the details left to legal and educational authorities who have experience and insight ~n this area.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION
100 MITCHELL STREET, S. w.
ATLANTA, GEORGIA
STAFF MEMORANDUM NO. 7
THE PRO G RAM 0 F H I G HER E D U CAT ION (PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 11.12 1963

'rHE PROGRM1 OF CHER EDU NI'ION
1. Higher education is characterized by variety in levels and kinds of institutions" These are the university)) the four-year college, the two-year college. the separate professional school~ and the branch or off-campus center of an existing institution.
2'0 Four of the 19 University System instjtutions offe~ the doctor of philosophy degree or its equivalent; 8 are four-year (or more) colleges with 3 offering
masters' degrees; 5 offering bachelors u degrees only;
17 institutions offer liberal arts and general education programs; 2 offer only professional programs and terminal-occupational programs; 11 offer teacher preparaiory programs; and 14 offer terminal-occupational programs.
3. Most curricula are organized to provide both general
education. that needed by all well-edcuated people j and specialized education. that which leads to occupational competence or specialized subject-matter mastery.
4. SUbject matter in higher education is variously classi-
fied but most would include~
- The humanities - language and literature. philosophy. the fine arts s and the like.
- Th~ physical and bio~oglcal sciences -~ physics~ chemistry. bl.ologY g geplogy. and the like.
- The social sciences'- hlstorY 0 political sciences economics, and the like.
- The professions - medicine. law, education, business administration. and the like.
5. Graduate education is aimed at developing mastery of
existing knowledge in a specialized field and the ability to conduct independent research of importance and quality. It seeks to develop highly~qualified people to:

- II -
1. serve as professional leaders and faculty members in higher education and in the elementary and secondary schools.
2. serve as highly-trained specialists in government, business and industry.
3. conduct research 6. The research function of higher education is directed
toward expanding the reservoir of human knowledge through the objective quest for new knowledge. A distinction is often made between "basic" research which deals with problems at the "cutting edges" of the known without regard for practical applications to be made, and "applied" research which deals with practical problems seeking knowledge which can be put to use immediately.
7. Pinancial support for research comes from two major
sources: general funds of the institution appropriated for this purpose and funds from out~ide sources in the form of gifts, grants and contracts awarded for this purpose.
8. Recent years have seen a rapid increase in research funds from government and industry which~ on the plus side, have greatly strengthened the research capacities and resources of higher education.
9. Increasing pre-occupation with contract reseArch ~~~ outside agencies. however. raises several danger points: first, it can lead to neglect of the lnstructlonal function; second, it can lead to neglect of basic research which will diminish the productiveness of applied research in the future; and third~ there is the danger that contractors of research through the power of granting or withholding funds will become the determiners of research objectives~ procedures, and allocation of personnel, thus subverting the necessary freedom and independence of institutions.
10e Higher education service programs include formal instruction of adults through credit and non-credit courses; applied research for outside groups and

- III -
agencies; consultation to outside groups and agencies; and leadership of outside groups in study and planning projects requiring faculty competence.
11. The demand for such services has led to the development of various organizational arrangements over the years. Typical of these are organized research centers such as agI'lcultural and engineering experiment stations, agricUltural and general extension departments, and conference and short course departments. In addition, a wide variety of institutes, centers and bureaus have been established to provide services related to a basic problem area wherein the needed knowledge cuts across subject-matter fields. Examples are such service units as Centers for Human Relations, Bureaus of Public Affairs, and Institutes for Community Development.

THE PROGRAM OF HIGHER EDUCATION

The program of higher education is presented in terms of: institutional levels and types, the instructional program, the research program, and the service program. These topics are discussed on a general basis. Subsequent memoranda will deal with selected problems of current concern and emerging problems which should be priority sUbjects for follow-up study after the present work of the Commission is completed.
Level's and TlE.es of ~!}s.1ttutions in Hifjher .2ucation Higher education in the United States is characterized
by a great variety in levels and kinds of institutions. The predominant kinds of institutions are the university, the four-year college, and the junior college, each kind having many variations. An institution is considered generally to be a university, whether or not the term appears in its title, if it offers the doctor's degree or its equivalent, has three or more professional schools and offers liberal arts and general p~ograms.l . Institutions are classified generally as four-year colleges (or more) if they offer liberal arts and professional courses leading to the bachelor's degree and sometimes the master's degree, but not the doctor of philosophy degree or its eqUivalent. The junior college is a two-year college offering one or more of a number of programs such as those parallelling the first two years offered for a bachelor's degree by four-year colleges, and terminal-occupational programs which do not lead to the bachelor's degree but entry into an occupation.
The separate professional school is another major type of institution. Separate professional schools operate programs only for the specific prOfession and are not within the structure of a college or university offering liberal arts and general and other p'rofessional programs. Separate medioal oolleges, theology schools, and the like are examples.
Another type of program unit isthe branch or off-oampus oenter of an existing university or college. These are not separate institutions but rather are organizational units 'in separate locations from the main campus which offer portions of the program of the parent institution

.-. .

1

Martorana and Hollis, Hir&~eJ' ~}!uca~10n, p.

6S; taanted

Boards Re!20nsible for
O:!. ~rrrce'~a:ucatron.

gs':Srai!Jl 'f'!re~or~ I 1962-6~. Part 3. pp. 1-2.

- 1-

~2-
or programs closely related" ~lIost branches and off-campus centers offer at least one or two years V work in fields of one or more of the parent institution~s bachelor degree programs~ while some branches offer all the work needed for selected bachelors Q degrees and~ in a few cases~ masters Q degrees o
The accompanying table shows the institutions of the University System now operating by level and general
types o It should be noted that 4 of 19 offer the doctor of philosophy degree or its equivalent~ 8 are four-year
(or more) colleges with 3 offering masters~ degrees and 5 bachelors Q degrees~ while 7 are junior collegeso Liberal arts and general programs are offered by 17 institutions~ while 2 -- the Georgia Institute of Technology and the Medical College of Georgia =- offer only professional programs and terminal technical-occupational pro= grams c Terminal-occupational programs are offered by 14 institutions and teacher preparatory programs by 11 institutionsc
In addition~ the Georgia Institute of Technology operates a two-year branch institution offering certificates and associate degrees in technical fields~ while the University of Georgia operates six off-campus centers with work limited to one year creditable toward a degree 8 plus two terminal certificate programs requiring two years of studyc
!.!2,~!:~~'S1:.2~Ll'2_[!',;~~~._Ji~1l~E,.~udc at i on
The instructional program in higher education is offered primarily through organized structures of content courses (curricula) for academic credit~ the successful completion of which earns for students diplomas~ certificates t and degrees 0 Most curricula are organized in two partsg first~ those courses leading primarily to general education objectives and second j those leading to specialized education objectives o
General Education
General education seeks to provide the knowledge and high-level skills needed by all well-educated people in our society to perform effectively the various roles in life< For illustration~ such courses as political science~ history and economics provide essential knowledge needed by educated citizens while such courses as English compo~ sition~ mathematics j and logic develop needed scholarly skills"

- 3-
Specialized Education
Specialized education within a given curriculum is organized on one of two bases. either occupational preparation or subject-content concentration. Many curricula are organized to prepare students for a profession or other high-level occupations. Examples are business administration i engineering j and teacher education. Others. primarily in arts and sciences, are organized to provide knowledge and skill in depth in a subjectmatter field. Examples are majors in history, biology, literature and languages.
Such distinctions are not as hard and fast as they may appear from this presentation since professional curricula develop content fields of their own while successful completion of subject-matter concentrations quite often provides the needed learning for successful entrance into an occupation. The real distinction is that occupational curricula are organized in terms of the needs and demands of the occupation, while subjectconcentration curricula are organized in terms of the logic of the subject matter itself.
Content Area
Subject matter in higher education is most typically considered in terms of broad content areas, each subdivided into numerous fields of study. Classifications of content areas differ somewhat from institution to institution but most would include:
- The humanities - language and literature, philosophYi the fine arts, and the like.
- The physical and biological sciences -physics i chemistrY$ biology, geology, and the like.
- The social sciences - history, political science, economics, and the like.
- The professions - medicine, law, education, business administration and the like.

- 4-
Graduate Education
Graduate education is offe~ed for people who wish or need to continue their schooling beyond the four-year baccalaureate or first professional degree. Historically, the masterQs degree program was designed to help people master existing knowledge in a given specialized field as well as the elementary scholarly skills required for research and the interpretation of research data.
The doctoral degree program was designed to develop more complex research competencies than those required by the masterQs degree program~ to the point that the individual could demonstrate ability to conduct independently research of importance and quality -- that is a significant contribution ~o knowledge in the field.
The vast expansion of the fund of knowledge in all fields j the growing specialization within fields j and the rapid development of new research tools and methods have somewhat blurred these distinctions between the two levels of graduate work o Mastery of existing knowledge j even in many narrowly~specialized fields~ requires formal study beyond the mastergs level~ while research is becoming so specialized that original investigations are accepted as contributions to knowledge in much narrower contexts than formerly prevailed so long as such investigations demonstrate the competency to conduct significant research.
Graduate education has as its major function the development of highly-qualified people tOg
1. serve as professional leaders and faculty members in higher education and in the elementary and secondary schools c
2 0 serve as highly-trained specialists in government~ business and industry.
30 conduct researchc
Th~-Be~!:,~!,Jrogr~!E,HjJ'i!~mr Ecation
The research function of higher education is directed toward expanding the reservoir of human knowledge through the objective quest for new knowledge; iDeas to make the unknown known. A distinction is often made between "pure" or "basic ~i research and II applied 1i research 0 "Basic" research involves investigations of problems arising at

the "cutting edges" of the known which reveal large areas of the unknown. The term is also used to describe research seeking new knowledge for its own sake without regard for any practical uses which might be made of it. II Applied" research is used to characterize investigations made to solve practical problems ~- that is the seeking of new knowledge which can be put to practical use immediately.
Research as a major function is characteristic of university-level institutions. Faculties of four-year colleges and two-year colleges engage in some research. Such institutions generally do not have the comprehensive programs and resources needed for vigorous and continuing research programs o Also it is difficult to sustain research as a major function without an accompanying program of graduate education in which new researchers are being developed in the fields of interest of the graduate facultyo
Financial support for research comes typically from two major sources~ general funds of the institution budgeted for this purpose and funds from outside sources in the form of gifts s grants and contractso The rapid growth of research in the last twenty-five years has been financed largely through the latter means o Federal and state governments and industry have increasingly stimulated research in fields and on problems of their own concern through grants or contracts with higher education institutions o
This developments on the plus side~ has greatly strengthened the research capacities and resources of higher education and has resulted in a rapid increase in the reservoir of available knowledge 0 Some observers. however s point to two dangerso Firsts the increased emphasis on productive research can lead to neglect of the instructional function and thus dry=up the seed corn from which newg highly-educated specialists must be developed to meet the needs of the future 0 Seconds contract research is largely conducted in applied fields to solve problems of the contractor and basic or pure research can be neglected. It is a truism of research that advances in applied fields today are made possible by the advances in basic knowledge achieved yesterday. Therefore s if basic research is neglected in the presents successful applied research will be diminished in the future. A corollary danger is that contractors of research through the power of granting or withholding supporting funds will become the determiners of research objectives and procedures and the allocation of research personnel~ thus by degrees sUbverting the necessary freedom and independence of the institutions"

- 6-
Because of these considerations most higher education institutions attempt to maintain a balance between basic and applied research. Gifts, grants, and contracts are more difficult to secure for basic research which yields little immediate prospects of a return. Therefore, institutions generally are forced to support more of their basic research with general funds and more of their applied research with outside grants and contracts.
Research in this era has achieved a dominating position among the functions of higher education institutions, at least at the university level. More and more, the status of universities is determined by the quantity and quality of research undertaken and the researchers educated. The research productivity of individual faculty members is increasingly the most important criterion for promotions and salary increases.
~~.Y!c~..E.2~I3.JE..2E..!!~~~r ~S~ t i9n
The nature and variety of service programs lead to some confusion in the minds of many people when the term is used to describe a major function of higher education. The distinction between instruction as a part of the regular program and instruction as a part of the service program is largely in terms of for whom instruction is provided b and where and when it is offered. Instruction offered for academic credit on the campus to regularly enrolled students during the official scheduled hours is considered a part of the regular instructional program of the institution. Instruction, either credit or non-credit offered off the campus or outside theregularl~ scheduled hours largely for people (usually adults) whose major occupation is other than attending school, is generally considered a part of the service program. General research conducted by faculty members, for the primary purpose of pushing back the frontiers of knowledge, is considered a part of the regular research program of the institution. Research and consultation designed specifically to serve the needs of groups and agencies outside the university are generally considered a part of the service program of the institution.
Requests for instructional and research services from a growing variety of publics coupled with a growing complexity of internal administration of higher education institutions, led to the establishment of various organizational arrangements for service programs. The first to be developed, and in many ways the prototype, was the establishment of agricultural experiment stations to

- 7-
conduct research on the problems of agriculture and the agricultural extension service to make the new knowledge gained available to those who could use it. These service programs were greatly facilitated by federal supporting funds which in turn generated supporting funds from state, and in some cases, private sources.
General extension programs to provide services in" fields and for clientele other than agricultural have been established by many institutions, particularly state universities. Such general extension programs have never received major federal support and, in most cases J have received relatively little state support. Thus most of them depend primarily upon fees for their services. Despite this handicap, general extension programs have developed rapidly particularly since World War II. This has been due in part to the growing urbanization of society and the consequent demands for a variety of services outside the field of agriculture. Urbanization. also. has caused considerable change in agriculture-related services for suburban and urban people. This development in turn has raised questions of closer collaboration between the two major service organizations in higher c ion and on some campuses, of merger by placing both services under a single administrator.
A host of other service program organizational devices has emerged in response to needs and demands of the public. Dep ments of conferences and short courses have been established, either within or outside the extension service. to provide non-credit. residential programs for adult groups tailored to meet their specific needs. Non-credit, community service evening courses are a feature of many institutions particularly those located in population centers. milar service programs are a major function of commun ty colleges. Institutes, centers and bureaus have been established by various institutions to provide research~ con3u~tation and instructional service related to specific problem areas wherein the knowledge needed cuts across traditional subject-matter fields. For illustration, one can f:lnd on numerous campuses such service units as Centers for Human Relations, Bureaus of Public Affairs t and Inst1t;utes for Community Development.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, S. W. ATLANTA, GEORGIA
STAFF MEMORANDUM NO. 8 V 0 CAT ION ALE D U CAT ION (PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 11-12, 1963

VOCATIONAL EDUCATION
1. Vocational education programs serve a dual purpose by improving the holding power of the school for many young people and providing needed manpower for the economy.
2. Vocational training must serve in-school and postschool groups -- those who are entering the labor market and those seeking up-grading and retraining.
3. Many areas of Georgia are not now served by types of programs for which there is current employment demand.
4. Trends in expenditures and enrollments in vocational programs are generally moving in the same direction as projected job opportunity trends -- that is, a decreasing percentage for agriculture, an increase for industrial training.
5. Business and distributive education programs have not increased as rapidly as seems warranted by demand.
6. Keeping a balance between programs and job demands requires adequate guidance and counseling personnel and teacher preparation programs.
7. Vocationally related programs in homemaking and industrial arts are vital parts of general education in the schools.
8. Job opportunities are increasingly requiring training beyond the high school.
9. Programs which are coordinated between high schools and area vocational-technical schools seem worthy of consideration.
10. While every effort should be made to meet the needs of the potential dropout, vocational programs should not be or be thought of as dumping grounds for the academically unfit.
-I-

VOC1\TIOUAL EDUCfI'1'ION
Vocational education pror,rams have been established and periodi cally increased and revi sed priJ:lt1ri 1:; to meet the needs of the youth who enter the labor force upon graduation from high school. In a democratic society, there is a responsibility on the part of the state not only to look after the interests of the 2 out of every 10 college age Georgians who enroll in colleges, but also to mcet the training needs of the much larger numbers not attending collece who must be equipped to earn a living and lead a meaningful life in a complex society.
From the viewpoint of economic structure, vocational education is a method of providing properly trained manpower for the jobs to be filled.
Vocational education programs, therefore, must justify themselves on two criteria: (1) how well thoy meet the needs of participating youth, and (2) how well they match the realities of the job markets thc"c youths rind upon completion of their training.
Moreover, vocational education has expanded to meet the needs of three types of enrollees: youth in high school, youth and adults who have completed or left high school and are full time students preparing to enter the labor market, and youth and adults either unemployed or working who need training or retraining to achieve employment stability.
Vocational and technical training opportunities are provided in varyin~ (lcgrec3 in high schools. More specialiZEll industrial training will be provided in Georgia's 26
area vocational-technical schools (12 of which are in opera-
tion), and in the 2 state trade schools.
The percentages of total vocational education expenditures, broken down by fields, are shown on the following table. The percentages for agriculture and home economics have been decreasing and the percentage spent for trade and industrial education has increased markedly in recent years. The percentages spent for business and distributive
education have remained small. In 1975, employment in farm occupations is expected to have decreased 31.5% from 1960,
and employment in sales, clerical and craftsmen occupations
is expected to have grown 44% or more. Farmers and farm workers as a percentage of those employed in 1975 will be only 4.5%, while the percentage employed in clerical jobs will be 13.2%. Studies of future employment patterns also
indicate the tremendous importance of technicians and skilled workers in the labor structure of the future.
- 1-

_2-
GEORGIA'S VOCATIONAL-TECRNICAL SCHOOLS

Area School in

II

operation, 1963

0

Area School to be opened
in 1964

1

State School

2

=

2 SchoolS Area

in

COBB

DECATUR

GRADY

WORTH
o
COLOUITT
2
II
THOMAS

- 3-

Percent of Total Expenditures for Vocational Education by Each Vocational Service

~252-l2.60 Ji9'62-l963 JJL.,3-l9 64*

Agriculture

33%

27%

25%

Business Education

2

3

3

Distributive Education

2

3'

2

Home Economics

33

30

28

Trade and Industrial

Regular Program

12%

18%

27%

Practical Nurse

2

2

2

Technical Training

6

State Trade Schools

10

9 8

6
_1

Total

30

37'

42

.~ ~SE~ t ima ted

The decrease in total expenditures for agricultural vocational training, the number of agricultural programs and teachers in Georgia schools. and the expanding program of area vocational-technical schools throughout the state. reflect an understanding of the employment trends of the future. But . the question remains whether this understanding is being translated In~o sufficient action in the vocational-technical program for Georgia's optimum economic development.
Certain changes of emphasis within the various vocational programs may be helpful iU offering training in meaningful, salable skills for the students enrolled in these programs~ Sound guidance programs in selecting students for the various programs and good teacher education are underlying necessities for effectiveness. Additionally, the agricultural program could be oriented more specifically to the wage earning occupations in related industries. with increased emphasis on the farm shop aspects t and to the development of joint programs with the other vocational services.

- 4-

Availability of Vocational Education
Opportunities in Georgia High Schools 1962 = 1963

Vocational Ag~ultu~

White
~=

Have Programs~

150 Counties

107 Counties

Industrial Arts Have Programs~ Enrollments Qualifys but do not have Programs; Enrollments do not Qualify Programs;
Business Education
Business Education Cooperative Training
Programs~

67

63

55

32 "

37 "

64

Most secondary school systems offer business education classes.
99$979 high school students were enrolled,)
Only 14 counties have cooperative work=training programs o
64 additional counties have sufficient enrollment to offer work= training programs for seniors"

Distributive Education Full-Time Cooperative !:E.s?jE'_~=~--..,=--..
Diversified Cooperative Training
_ . , ~ ~ ~ ~ " U t m

17 counties have full time DeEo cooperative programsc
33 additional counties have sufficient enrollment to support DoE. cooperative programs o
Only 1 county has no home economics program.
31 counties have programs.
Programs recommended for 35 additional counties.

- 5-

Enrollments in Vocational Education Programs in Georgia
1962 - 1963

High School

% Change
From
1962-63 1259-60_

Agriculture

28,705 + 10.8%

Home Economics

59,804 + 6.0

Distributive Education

942 + 17.0

Business Education1

I~ 30 + 68.6

TraEddeucaantdionIn2dustrial 4,026 - 30.9

Industrial Arts

31,557 +119.5*

Adult

% Change
From
1962-63 1222-60

14,018 - 20.9%

21,982

0.2

5,576 - 10.5 9,079 + 27.6

26 .. 680 + 14.4
No Adult Program

1 Does not include 99,979 high school students enrolled in
business education classes.
2 Includes practical nurse training, area vocational-technical schools .. an~ the two state trade schools.
* Percent change from 1960-61 to 1962-63.

In business education, there are only 14 counties with
work-training cooperative programs for high school seniors.
Enrollments qualify an additional 64 counties to institute this on-the-job type of training program. Only 430 high school
students are now enrolled in the business education program in the area vocational-technical schools.
The distributive education program to train people in marketing .. distribution, and management relates directly to the vast growth of employment in the sales categories. The

- 6-
program has been based largely on cooperative on-the-job training. in addition to classroom instruction. Presently,
only 17 counties have such a cooperative program, although
33 additional counties could qualify for it on the basis of enrollments.
The home economics program, with the largest total enrollment of both high school youth and adults, traditionally has had a dual role of preparing girls for their roles as homemakers and also for the eventuality that they might join the labor force. If the second purpose is to be accomplished in a meaningful way, home economics instruction might be directed more specifically to wage earning occupat'ions such as child care, nursery aides, and school lunch managers.
Home economics has traditionally been linked with vocational agriculture as federally supported programs. It should be noted that need for the two are not synonymous. The need for homemakers is not declining and homemaking courses in the general education curriculum are not f~der ally supported. Wage earning training will probably continue to draw federal funds and should be geared to need as are other vocational programs.
The trade and industrial program has the largest adult enrollment of all the programs, and the related preparatory program of industrial arts has seen the greatest growth in high school enrollment of any vocational education program. It is striking that high school enrollment in the industrial and trade program has dropped in the past four years. There are 61 eXisting cooperative industrial programs where juniors and seniors spend half a day in school and work at a parttime paid job' in business establishments under supervision of a teacher-coordinator. The Division of Vocational Education recommends that 80 additional such programs be established in 67 counties. In order to coordinate existing high school programs and the area vocational-technical schools, a method might be worked out enabling students to complete required academic subjects in their high schools and specialized vocational training at the area schools. Such a plan is proposed by the Division of Vocational Education.
In order to keep the trade and industrial program realistically aligned with employment opportunities, a constant reappraisal of the curriculum is vital.

- 7-

Vocg.t ional Eduq,ation an? the_.r..C22~..!.oblem
The relationship of vocational education to the dropout problem has received a great deal of attention. Young people who are anxious to earn money and are restless under academic programs may have greater incentive to remain in high school if they can participate in cooperative study and work programs. such as those now available in some schools. Youngsters who have the "itch" to start in their chosen vocations may be more inclined to remain in school if they can participate in meaningful training for salable skills before dropping out. For this reason it is particularly important that consideration be given to expansion of the industrial arts programs in grades 7. 8 and 9. The possibility of enrolling high school students in the area vocational schools by their senior year. if not earlier. might also be considered when appropriate programs are not available in the hig~ school. For the same reason. it is important to strengthen the cooperative study-work programs.in the various vocational fields.
A possible arrangement for the coordinated high school vocational-technical school program might be as follows.
_ _- . ... ......... _--_.~-_ _------------,--~-,------

Coordinated Curriculum of High School anQ Vocational-Technical School

C~u~
English

9th
Q.r.ad.~
1

lOth
-Gr-ad-e
1

11th Grade
1

12th Grade Area Sch__o_o_l_
.~l"""""

Total
-Un-it-s
3

Social Studies

1

1

1

3

Science

1

1

Math

1

1

Math or Science

1

1

Electives

2

2

2

4

10

Total Units

5

5

5

4.

19

Source: Division of Vocational Education. State Department of Education.
---------------------_._-------

- 8-
While on one hand. it is desirable to make vocational education available to potential dropouts at as early a stage as possible. one must remember that training for the skills of today's technology requires sound academic background that cannot be short cut. Vocational education is not offered instead of a sound academic program. but is an integral part of the total educational program. Most programs require aptitude which the slowest learners do not have. Therefore the problem of dropouts among students at the lowest academic level cannot be solved by vocational education. but must find a separate solution. The "image" of vocational programs as "dumping grounds" for the academically unfit can be most d~trimental to the programs.

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, S. W. ATLANTA, GEORGIA
STAFF MEMORANDUM NO. 9 G E 0 R G I A'S PUB L I C J U N lOR COL LEG E PRO G RAM
(PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 11-12, 1963

GEORGIA'S PUBLIC JUNIOR COLLEGE PROGRAM
The growth and development of the junior college movement is one of the most dramatic and distinctive in American education in the twentieth century. In the United States in 1900, there were only 8 junior colleges, all private, with a total enrollment of 100. By 1958-59, there were 677 junior colleges (400 pUblic, 277 private) with a combined enrollment of 905,062. Almost half of this total enrollment was composed of "special" and adult students. Private junior college enrollment constituted only 11% of the total. l
The Development of Public Junior glle5es in Georgia
Georgia's public junior colleges prior to 1958 were largely an outgrowth of the old district agricultural and mechanical schools. By the time the University System was organized in 1932, the growth of the comprehensive public high school had largely eliminated the reasons for the original establishment of the A&M schools. Some of the A&M schools had already developed junior college departments while others were engaged almost entirely in offering vocational programs at the high school level. Following a survey in 1932-33, the Board of Regents closed 6 of the A&M schools and converted 4 of the others into junior colleges. In addition, 2 former four-year colleges were converted into junior colleges. Later, two of the junior colleges, North Georgia College and W~st Georgia College. were converted into senior colleges.
Between 1933 and 1958, no additional junior colleges were established by the University System. Two public junior colleges supported by local funds without state aid were operated ind~pendently of the University System, Georgia Military College in Milledgeville and Richmond Academy in Augusta. In the middle '30's, an additional public junior college supported bv local funds was established in Savannah, Armstrong Coll~ge. It, too, operated independent~y of the Board of Hef,ents.
1 Gleazer, Edmond J. J Jr. (Ed.). ~&2.r_.901lege Directory,
1.9 ~..
2 Regents of the University System, Annual Report!, (selected years); and Coffman, L. D.~ et al., Report to the Board of
~~6~nts of the University [~stem of Georgia, (1933?).
-I-

,

GEORGIA'S PUBLIC JUNIOR COLLEGE PROGRAM

..

JZ1

1. Georgia's public junior colleges prior to 1958 were largely an outgrowth of the old District Agricultural and Mechanical Schools. Between 1933 ,and 1958. no additional junior colleges were established by the University System.
2. The Junior College Act of 1958 embodied most of the recommendations of the legislature's Junior College
Study Committee. The new legislation allowed local governing units with taxing power to establish and operate community junior colleges with state support in the amount of $300 per equivalent full-time student, but gave the Board of Regents the power to set the criteria and standards for their establishment and operation. The net effect was to provide a second means to establish and operate junior colleges with state financial support; one as a unit of the University System, and the other as a unit under local control.
3. Following this action, the Board of Regents established
three new junior colleges as a part of the University System. This was a net addition of one junior college in the state. since two of these units had existed formerly under local control and support - and without state aid.
4. Since 1958 many c6mmunities in the state have expressed official and unofficial interest in securing community junior colleges. Four additonal ones have been authorized by the Board of Regents for operation as a part of the University System.
5. This rapid establishment of new junior colleges over a period of 5 or 6 years. following a period of relative inactivity in this area, has raised a number of questions in the minds of concerned Georgians.
6. The first question has to do with the concept of the
community college. The highly respected and authoritative Commission on Goals for Higher Education in the South in recommending strong systems of two-year community colleges in each state described them as follows:

-I-

- II -
These non-residential institutions, generally located in urban areas, can serve a variety of functions for which four-year institutions are not required. Among these are freshman and sophomore college courses, vocational and technical programs, gUidance and counseling services, specific programs to meet community needs and adult education.
The community college is economical for both student and taxpayer. It can be responsive to local needs and a vital force in the community.
These colleges, as now organized, are parts of the local public school programs, separate two-year state colleges, or affiliates of the state university system. Whatever the basis of the organization, however, three things are essential:
1. They must be integral parts of the state system of higher education, and fully c:Jordinated with the other parts of the system.
2. They must resist pressure to expand into four-year institutions, concentrating rather on achieving excellence 1n their two-year programs.
3. Their distinctive function must be recog-
nized and respected. They are neither mere extensions of the high school nor decapitated versions of the four-year colleFe. l
7. The second question has to do with the how, when, and
\'lher.e of' deciding about the, lccation of additional community colleges. These are basically technical questions foI' consideration by specialists and governing boards, but are of intense local interest to communities with ambitions to secure one. A brief dlscu~sjon of criteria is contained in the main body of thi~. report.
]. Southern Regional Education Board, Within Our Rea.h,
November 30 1961 p. 16 , ..~.;o_"~,,"_ .....,,...;,.a.~_..J._""""'_n._

- III -

8. The procedure of local community initiative for study
and petition to the Board of Regents, while reasonably satisfactory in situations where such :1:nstitutions are justified, creates unfair conflict-situations both to the Regents and the local petitioners in cases where such institutions are not justified.

9. To resolve this inherently destructive conflict-situa-
.~ tion the following procedure is recommended:

Ca) That the Board of Regents conduct an inten-
sive state-wide survey to determine the justifiable locations and establish a priority plan for the development of additonal institions. l

(b) That the Board of Regents develop a plan for continuous study of the need for additional community junior colleges as changing conditions might justify.

(c) That the criteria for the establishment of

community junior colleges adopted by the

"'''''j'''''d ",'" be' the J:;., <; .'..

C'!.

,P1r,.>;. 6c'-~"','n

L
L,.:,:>-

".,:.n.. ,'

.'l,9.'~/8')

.-I. ~'.":.. 'V.l',s,~ed 1''1.'.'



light of new experience and new research in

the fie.ld and that these revised criteria

be the;;'<::Lsts for maldng decisions about

additi nal community colleges.

Cd) That wh0n the Board of Regents determines

at locat.!'m for an a deli tIonal comrnun:i ty

college! it should approach the appropriate

ca e n d e n c ) u r' a .") .La",.) + - 1 ' r.) (c).,;!" ,,".,L1~,c>"

') ,- d.' .l,-,, Q, comrr.un~~,-,y

(1"

'H.

G! ).



(

([',c

them to ~ake their own studies to determine

community need t, interest ~ willingness ~ and ability to meet the requirements of the

Board of Re~snts'in terms of local support.

1(\. 1\ ri'!mber c,r potent5.al ~;ites tor- [(,dditional commu:1ity colJe s have been identified for serious study as rec~rnmcnded in the preceding paragraph. Maps showing thS30 potential sites and a brief discussion of each are ~ontalned in the main body of this report.

1 'I'be BO,::t.rd of Hegents commenced 31.lCh a stud:,/, prior tc, the est[:.tdi.:::hmt/llt of the G()vernox"~~ Commiss:ion tel Impcove Education. but suspended it pending the completion of the
Comrillss:Lon's Report.

11. A thlrd question 11cu'; to de \'iJt:h e08Tr, of cc"nmunlty

colleges. Current i'hLimatcn of 1h eopt IJf pro""

vi.ding land, bll:iliJ:lni..;i; and b:)f:;j t: cClu.iprnent foY' a

community cc)11cge GDpablc or l1andl1nf~ lIDO d3.Y stu-

dents and as many more In 1:11,,; t:'}('ntng, runs tn the

neighborhood of $1 5 000.

sent Regents'

polley and practIce re<Jll1.r'en the 10(';11 cornmunity

to provide an

(Fl(;!. e sIte

;dL'~lf1L JOO acres

arl (1 t 11e rUTl (] ~J r'D yo (1. OlU:;'\',-, 1"u (: 1" 1 f~~ r~ d t (1 U 1 {) t

L11 e

initial facl1itl 8

12. I t 1 s C'~' t i mel t. C' oj r

V ') 1 r he ,'1.

"!

!'ij 11 ment

of~ comJDunity l,~

~!.1

C.' . ~ (1 () :3 t u...~,

den t :,j and tIl

t \1.

(.

el '"!' ~} iJ,dent

j n 't: he s e :i n~; t :iL u t J \i 11 ~.i 11\11 1; r' i ';

Ll1(: Clll'Cent

average of $432 at the rate of at lea t 5% per year

to around 1;600 p';::> :;t 11c]'.l)

Thu

ni n.irnum entimate

of the needed ann

,,11-; f'l-:).\., Or)e rl 8 ......

tJor1;.f (} typ

'~/J

(,! U 11 5. fl the

nei bo

~1 f" 'j

,','./i ;,3 lons
1\. J.b

}~1 a,s
Cot'] cl
tu'lcnts, a..r',t 1y ~

- 2-

In 1958. the "State Junior College Study Committee". authorized by a 1957 House of Representatives resolution, made its report. This report recommended establishing additional community junior colleges.

The 1958 General Assembly enacted legislation embody-

ing most of the recommendations of the "State Junior College

Study Committee." The net effect of this legislation was to

provide two means by which community junior colleges could

be established and operated with at least partial support

from state funds. The Board of Regents continued to have

constitutional and legislative authority to establish new

institutions and operate them as a part of the University

System. The new legislation allowed local governmental

units to establish and operate community junior colleges with

state support in the amount of $300 per equivalent full-time

student for the academic year, but gave the Board of Regents

the power to set the criteria ~nd standards for their estab-

lishment and operation.

.

In the spring of 1958, the Board of Regents adopted a set of ~criteria for the establishment of junior colleges
in the State of Georgia." These criteria were set forth as "minimum standards under which colleges may be approved
to receive State aid under the provisions of House Bill No. 686, approved February 20, 1958, or brought in as units of the University System of Georgia."l

Following this action and ~sing these criteria, the University System established three new junior colleges under its direction and control: Augusta College, Armstrong
College~ and Columbus College. Of these three institutions only one, Columbus College, represented a net addition, since the other twosucceeded junior colleges already in existence
but not a part of the University System.

Since 1958, the Regents' office has had numerous official and unofficial contacts from representatives of commu-
nities throughout the state interested in the possibility of establishing community junior colleges. Four have been authorized for location at Albany, Brunswick, Dalton and
Marietta and are in various stages of planning and facilities'
construction. These actions resulted in a net addition of
5 public junior colleges for the state and 7 additional units
operated by the University System.

1 Office of the Board of Regents, Criteria for the Establish~.of Ju_TlLor Colleges in_~he ..~of Georg~ (mfffiEtographed document), May 9, 1958.

- 3-
The DeKalb County School Board has announced plans for operation of a junior college under its control and has secured authority to do so through a constitutional amendment. There is still a question as to whether authorities contemplate operating this institution under the Junior
College Act of 1958 with state support in the amount of
$300 per equivalent full-time student. So far as can be determined, no official petition to do so has been made to the Board of Regents as provided for in the Junior College
Act of 1958.
This rapid establishment of new junior colleges over a period of five or six years, following a period of about 25 years of relative inactivity, has raised a number of questions in the minds of concerned Georgians: Just what is a "community junior college?" How many will there be and where will they be located? Can they be supported adequately financially? If so, will the financial drain result in inadequate support for the needed development of existing institutions? Should the potential possibility of a dual system of junior colleges supported by state funds continue to exist, one under the Board of Regents and the other under
local boards as provided in the Junior College Act of 19581
Will there be duplication, overlapping, and undesirable competition between the 26 new area vocational-technical schools and junior colleges?
~h..e,L~ ..~;;. a.n(tl'unct:h.2D....2.~..Lf.2..mmunity College?
The most typical concept of the junior college and the one most often followed in practice in Georgia, at least
until 1958. was that of an institution offering the first
two years of college and university four-year bachelorts degree programs. These institutions were designed to "bridge the gap" between the high school and the large four-year colleges and universities. All public junior
colleges prior to 1958 were residential in the sense that
they provided dormitories and were thus available to students from throughout the state, from other states, and even from foreign countries. Their curricula were largely liberal arts and general education, plus some pre-professional school programs. In more recent years a number of one and two--year terminal-occupa.tional programs have been added. Apparently, however, very few students enroll in such programs and complete them.

- 4-
A relatively new concept of the comprehensive community college has been gaining ground with increasing tempo since World War II. States such as California. Florida, Texas, Michigan -- and more recently North Carolina have been leaders in the development of community junior colleges.
The highly respected and authoritative Commission on Goals for Higher Education in the South recommended that, "Each state should develop a strong system of two-year community colleges." In making this recommendation, the Commission on Goals presented a brief, yet comprehensive, statement of the characteristics and role of community colleges as follows:
These non-residential institutions, generally located in urban areas, can serve a variety of functions for which four-year institutions are not required. Among these are freshman and sophomore college courses, vocational and technical programs, guidance and counseling services, specific programs to meet community needs and adult education.
The community college is economical for both student and taxpayer. It can be responsive to local needs and a vital force in the community.
These colleges, as now organized, are parts of the local public school programs, separate two-year state colleges, or affiliates of the state university system. Whatever the 'basis of the organization, however, three things are essential:
1. They must be integral parts of the state system of higher education. and fully coordinated with the other parts of the system.
2. They must resist pressure to expand into four-year institutions, concentrating rather on achieving excellence in their two-year programs.

- 5-
3. Their distinctive function must be recognized and respected. They are neither mere extensions of the high school nor ~ecapitated versions of the four-year college.
It is the jUdgment of the Commission staff that the preceding statement represents the best thinking of authorities today on the matter of the role and function of the junior colleges. It is therefore recommended that all junior colleges which may be approved in the future for operation with financial support from the state be developed in line with the community college
concept. The junior colleges established prior to 1958
offer ample opportunities for students desiring residential facilities.
What Are the Criteria for E~i.abli,shi.ue. Communi t:i ~&:'II;~;" aD.d Wh~re ~!::ould Thel be Locate9,.?_
The question of when and where to establish additional community junior-collegc:s-wrll be treated first as one of procedure~ second as one of criteria for decision making, and third as one of suggesting potential future sites with some indication of priority. It is recommended that the suggested procedure and criteria with needed refinements be used in follow-up studies when the present phase of the Commission's work is completed.
Suggested Procedure for Establishing Additional Community Junior Colleges
Since co~munity junior colleges, by definition, are designed to serve the communities in which they are located, every community in the state would find it desirable to have one. The conditions required to operate a community college with adequat~ quality are such that wholesale establishment of them would lead only to weak institutions which would not justify their existence; the impoverishment of the existing universities, colleges and junior colleges; and a total cost of higher education which the state could not sustain.
1 Southern Regional Education Board, ~hinwOur R~. November 30, 1961, p. 16.

- 6 ."
ThIs makes mandatory the planning for community Junior colleges on a systematic. statewide basis. Such planning is uniquely a function of the Board of Regents of the University System of Georgia. The present system of petitioning the Board of Regents. as provided for in the Junior
College Act of 1958, while desirable in providing for local
community initiative. leads to rather serious consequences. The process of developing an adequate petition at the local community level involves the development of overwhelming sel~lment on the part of local leaders and organizations. The Board of Regents. on the other hand~ faced with the responsibility for making decisions in terms of the best interests of higher education in the state as a whole. must inevitably turn down petitions from many communities. The resulting impasse is unfair both to the Board of Regents and to the local community. To resolve this inherently destructive conflict situation, the following procedure is recommended:
1. That the Board of Regents conduct an intensive statewide survey to determine the justifiable locations and establish a priority plan for the development of additional institutions. l
2. That the Board of Regents develop a plan for continuous study of the need for additional community junior colleges as changing conditions might justify.
3. That the criteria for the establishment of community
junior colleges adopted by the Board of Regents in
1958 be revised in the light of new experience and
new research in the field# and that these revised criteria be the basis for making decisions about additional community colleges.
4. That when the Board of Regents determines a desirable location for an addit1.onal community college, it should approach the "appropriate officials and community leaders and encourage them to make their own studies to determine community need. interest, willingness, and ability to meet the requirements of the Board of Regents in terms of local support.
1 The Board of Regents commenced such a stUdy prior to the establishment of the Governor's Commission to Improve Education, but suspended it pending the completion of the Commission's report.

-7
Criteria for Establishing Community Junior Colleges
A. J. Brumbaugh, consultant to the Southern Regional Education Board, has recently published a pamphlet r Guidelines ~..c'r the EstabJ.i.sQment of Communi t l Juni?r Colle5!?s. T'hLs study summarizes the best thinking to date on the subj ec t . '1'he general cri teria recommended by thi s pub Iica t ion are as follows:
Statement of the Criteria
Although communities differ in many respects, the following criteria appear applicable to the establishment of a successful community junior college in alll locality:
1. A community junior college should be estabLished only where there is a clear understanding of the special nature and function of such an institution.
2. A community junior college should be established only where there is a demonstrated need for educational opportunity beyond the high
[Jehoo}.
3. A community junior college should be estab-
: i :.3~jed only where people in the community demonstrate a favorable general attitude toward the junior college and its unique function.
4. A community junior college should be established only where there is adequate financial 3uoport of a permanent nature.
5. A community Junior college should be estab-
lished only where adequate space is available for the institution or where there are adequate L1..n?nce~.o to nrovide "Dace.
6. ~ community junior college should be estab.L.L: h e don 1y wher e i t i s rea d i 1 Y a c c e s sib 1e for tnuse whom it is designed to serve.
7. A sommunity junior college should be estab-
:ished only after consideration of educational opportunities available in other nearby insti~utions of higher learning.

- 8-

8. A community junior college should be established only after a survey has been made of the
community's over-all needs in higher education and its present resources to meet those needs. In states where a statewide survey also has been
made, the community survey should take into account its findings and recommendations.

Although authorities differ in detail on more specific criteria required for an effective community college. the following are submitted as indicative of the best thinking:

1. For economy and efficieryCY. an acceptable minimum enrollment would be in the neighborhood of 350 or 400 equivalent full-time students. Projecting esti-
mates of enrollment for prospective community colleges is a highly technical job involving many
variables. As a rough rule of thumb. however. Brum-
baugh quotes the Community College Council of Florida as recommending calculation on the basis of 1 college student for every 3 students enrolled in grades 10 through 12 within the service area. The 1958 Regents criteria specified 3.500 enrollment in grades 9 through 12 within the service area.

2. Most authorities define the effective service area for commuting students as between 25 and 35 miles of the location or. as an alternative. 45 minutes to an hour's driving time.

3. The operational cost for junior colleges varies with the type of program and location. The 1962 Annual Report of the University System of Georgia showed an average expenditure for the 7 junior colleges of $531 per equivalent full-time student. The range of expenditure varied from a low of $451 per student to a high of $642 per student. This compares with the national average of $528 for all junior colleges
in the United States. both public and private. as reported by Brumbaugh.

4. The cost per student for plant construction is esti-

mated by Brumbaugh as ranging from approximately

$2.500 to $4.000.

.

5. The amount of land needed to provide facilities for 400 students and for reasonable future expansion has
been estimated by the Board of Regents office as a minimum of 100 acres.

9-
Potential Sites fo~ Addit1o~al Community Junior Colleges
~he accompanying map provides a general pictu~e of are~~ in the state which are not within effective commuting distance of present or authorized pUblic institutions of higher education. It is emphasized that this iG only a general picture since a radius of 35 miles is too large where ro~4~ and geographical factors such as mountain~ prevent ease
of ~~~ess within 45 minutes to an hour's driving time. Also,
some of the institutions, because of the special nature of their programs or their sele,ctive admissions p~actices, do not provide community college opportunitiese1ther in the regular academic program or in terminal-occupational programs and adult programs. A case in point 1s the Woman's College of Georgia at Milledg~Yllle which accepts female appl!eants only.
The Atlanta Metropolitan Area
The Atlanta metropolitan area, because of the density of its population and the complexity of its structure, presents a special problem. This area contains over 3/7ths of the population of the state and is expected to have at least 4/7ths .of the state's population by 1980. For this reason first priority should be given to a study of the Atlanta metropolitan area to determine whether several community junior colleges should be established in strategic locations to serve the various segments of the area. In studying this question, first consideration should be given to existing or authorized institutions.
GeO~ia State Coll~. Georgia State College is a unit of the-Un-verslty~ysternilLocatedin the heart of downtown Atlanta. Georgi~ State offers. a variety of programs through the bachelor's degree level, a growing number of programs through the bachelo~'s degree level, a growing number of programs through the master's degree level, and a doctoral program in Business Administration. Georgia State began its existence as an open-qoor institution, but in recent years has become highly s~lective. Although programs are still offered during the evening as well as during the day, the composition of the student body has changed rapidly in the direction of a high proportion of full-time students. The college entrance scores made by Georgia State students rank with those made by students at Georgia Tech and the University of Georgia.

- 10 -
AREAS NOT SERVED BY PUBLIC INSTITUTIONS OF HIGHER EDUCATION

I. NORTHWEST

4. WEST CENTRAL

2. MORTHEAST

5. EAST CENTRAL

FAR-WEST CENTRAL a SOUTHWEST

7. SOUTHEAST

*PUBLIC COLLEGES FOUR YEAR ... JUNIOR
POPULATION
2500 to 5000
5000 or more

10~O

to 20 Mlt.ES

30 40

RADIUS OF CIRCLE 35 MILES

- 11 -

Action was taken by the Regents a year or two ago to
establish at Georgia State a Division of General Studies Wihlch would provide educational op~ortunities of many kinds to many people on an open-door bas!$. Georgia State has not acttvated the Division of General Studies as yet. When it 1s e~tivated, it would serve a community college function in ,many respects.

~alb C~mmu~li~ ~11~. The DeKalb County Board of Educat10n has under construction a community college which is immediately adjacent to the DeKalb Area Vocational School
which is being opened for the first time in the fall of 1963. The De~alb community college will open in September 1964.

, Gobb 9.2~.rtlSo.!!:.lJ.l.ld.ullx._2l..~~e and ~thel?n Technical

ofInsGtietourtgeIa.

Southern Technical Tech, is located in

InstItute, a two-year branch Marietta near the Lockheed

plant, The Regents have just authorized the establishment

of a community college in Cobb County to be located in the

Marietta-Smyrna area on a site which is still to be selected.

Southern Technical Institute is a specialized inatltution of

the technical institute variety. The newly authorized com-

munity college presumably will be a two-year institution

comparable to the other junior colleges within the University

System. These tend to be heavily academic in their orienta-

tion, but the newer ones have some programs of a vocational

an~ adult education nature.

Adqlll,2r1~;L, L9.,saq.0..D..s in them_8.-tlanta" Metro~lt:.Z.n Area. A preririlinary stild'y of fac'tua:J" InformatIon maae y the Commission ~taff 'indicates that the DeKalb County location at which a community college is under construction and the Marietta-Smyrna location which has just been announced, are both major population centers which appear to justify the establishment of community junior colleges. if one operates on the assumption that the Atlanta metropolitan area will need several of such institutions in its major population centers. Additional population centers which should be considered for community colleges are as follows:
The Tri-Cities Area, The tri-cities area southwest of Atlanta consistrng or-Hapeville, College Park, and East Point represents a major papulation concentration that will grow in the future. A community college might be located in this section, or this section might be served by a

12 -
5 POTENTiRL 'TES ':-CR JUNIOR [CLlEGES
IN THE
RTLRNTR METROPCLlTRN RRER

, Marietta -
Smyrna Area

I

~ACWORTH

,

OENNESAW

r-:J POWDER
~SPR'NGS
West Atlanta- Area
I I
I
TrJl. -'O!. t Jl.e s Area

DeKa1b ...... C o u n t y
Area
"""Downtown Atlanta Area

= 13 =

community college located in south Atlanta near the site of the Atlanta vocational school which is presently under construction o The south Atlanta site would be preferable only if it were decided that community colleges and vocational schools should be built adjacent to one another whenever possible o If one operates strictly on the basis of population concentration; the tri-cities area proper would appear to be the preferab location c

West Atlantao Wes of the central business distrm='S:S-:re'l:'ct1es a heavy pop..:.:. atLm concentration which appears large enough to justify the establishment of a communtty ju:nior college o Transportation from this seot:1cn 'to oommunity c:ollege sites in the Marietta=Smyrna area or in the tri=cities area does not appear good enough for those institutions to serve this west At anta area adequatelyo

The Downtown Area" Georgia State College is

located '":in the -hear'f=7)f l~he downtown area and could

serve the commu~1ty college

etlan for that part

of the city including the popu_at1on concentration

just north s south a~d eas~ of the downtown o This would necessitate a~t!vatlon and development of the

Division of General Studleso

The area just east of the downtown sectIon has
a heavy population conce~t~ation that can be served by the downtown lo~ation of Georgia State College or could be served less efrective~y by the DeKalb community college o

The locations listed above appear to exhaust the possible locations in which there is a sufficient present or projected population concentration to warrant consideration as a community college site o These locations therefore present a complete metropol:itan area system whi.~h would serve the city
for many years into the future 0

~ 14 =
The administrative arrangements which would be appropriate to a series of metropolitan community colleges . such as that suggested above. need careful studyo One possibility is the Chicago pattern of grouping the several institutions into a single ,system that for some purposes is looked upon as a single institution o The other extreme would be to establish them as completely independent institutions coordinated only through the University System. This might be achieved through a community college unit within the Regents U staff. Such a unit would~ of course. be responsible for all of the community colleges in the state, and not just for those in the Atlanta metropolitan areao
Other Possible Sites Outside the Atlanta Area
The Macon Area. The Macon area is a prime location for serious consIderation. It is the only standard metropolitan area in Georgia which does not have a pUblic institution of higher education located within its boundaries. The presence of the Warner Robins Air Material Area Command. with its large number of military and civilian employees. makes this an additionally important site. The major complicating factor is th~ prpsence of two privQte foar- year collegeso There is the question of a community college as a possible detriment to their programs. High tuition rates and highly selective admissions policies of these prvate institutions, on the other hand. may constitute a barrier for a large number of people who are qualified to profit from the services of a community junior college.
The Gainesville Area. The Gainesville area is another potential site. This community with a growing population lies outside easy commuting distance of Atlanta or Athens. The population is within commuting distance of North Georgia College at Dahlonega. but the program at that institution is not designed to serve community college functions.
Southwest Georgia, The third possibility is the extreme southwest Georgia area, running from Thomasville through Cairo to Bainbridge 0 This location appears somewhat marginal due to the' relatively small population within service areas that are not already served by institutions at Valdosta, Tifton. and Albany, Another factor is the presence of Florida State College which already draws quite a number of commuting students from this deep southwest corner of Georgiao

- 15 =
The Griffin A~eao The fourth possibility is the Griffrn-arei.-'~he-heaviestpopulation within the Griffin service area lies north of the city and cuts through the southern part of the Atlanta metropolitan areao If a community junior college were located in the tri-cities area~ it might serve the larger share of the population in the Griffin area, 'l'he cou.nties immediately to the south of Griffin have relatively small populations and, for the most part t have either declined in population or remained relatively static
The Rome Area A fi.fth possibility which may be justiTIedo'v,~"the course of the next decade is Romeo The Rome service area is relatively large in population~ and is growing Like Macon,~ however ~ there is the complication of two p?ivate college3~ both of which have been moving in the direction of serving commuting students. Also the service areas of the new institutions at Dalton and Marietta would overlap with the Rome service area.
!,h~~!-~.o=~!!J~(L~W~l.~Lg~~~tJ\~~ LaGrange and Waycross as potential sites present a Dl.mllar pic:tureo Both are relatively large central cities but their service areas are already heavily preempted by other institutions. West Georgia College '";0 the nor'th of' LaGrange and Columbus College to the south leave very little service area not covered. In addition there is a private college serving LaGrange, Outside of Waycross proper and its suburbs, the population is relatively light. Also the service area available to a community college located in Waycross is largely preempted by South Georgia Col1ege i lying to the northwest and BrunswicK College to the east.
Operati~g costs for community junior colleges based on a minimum estimate of 400 students at an average total expenditure of $600 per student (the average budgeted for state junior colleges in Georgia in 1963-64) would amount to $240~000 per unite The average state appropriation for 1963~64 is $432 per student (the difference between the total expenditure of $600 per student and the state appropriation of $432 per student consists of tuition, student fees and other income), This would amount to $173,000 from state funds per unit of 400 students o The cost of land~ construction of adequate bUildings and equipping the facilities is estimated at $1~500JOOO per unit, Land

~ 16 =

costs for institutions located within the Atlanta metropolitan area would run this estimate considerably higher. even if suitable land could be acquired from urban renewal projectso

For purposes of calculating the possible magnitude of

additional costs~ we will assume 9 additional community

colleges including the 4 already authorized but not yet in

operationo On the minimum basis of 400 students and the

c a

u d

rrent ditio

n

av al

e

ra st

ge ate

pe c

r o

s st

tu s

de fo

n r

t

state approp P~~~~~~~ of

riat the

i

on
9

i

of ns

t

$432 t itutio

n

s

would be $1~555~200 per year o

Cost for providing initial physical facilities and
equipment for 5 additional community junior colleges over
and above those already authorized would amount to at least
$7,500,000. Present policies and procedures of the Board of Regents require the local community to provide an adequate site of at least 100 acres and the money to construct
and equip facilities for an initial day-time enrollment of 400 students, The state then assumes responsibility for providing operating funds If this procedure continues to be followed, on~y operating funds from state sources need to be calculatej~ although additional plant expansion after the initial effort does become an obligation of the state,

It should ba emphasized that these are minimum estimateso By 1970 i the average' snro L~.ment ofthe~community colleges probably will be close to 1,200 students and the state
appropriation pe~ student probably will rise at a rate of not less than 5% per year Thus~ if we assume 14 junior colleges, both c.ommunity and res.idential~ the total en-
rollment might be expected to reach at least 16 j OOO students
and the state appropriation at least $600 per student. This would require an annual operating cost from state funds of around $10 million dollars, By 197C j for each additional
unit established the necessary annual state appropriation for operations can be reasonably estimated as at least $720.000 0 1

1 Estimated from data provided by the treasurerus office of the Boa-d of Regents~ staff enrollment projections~ and data from AD J. Brumbaugh j Guidelines for the Establishment of CommunJ.tZ~Junior Colleges.

~ 17 -
Junior college enrollment in the University System now constitutes approximately 14% of total enrollment, but most authorities estimate that the location of a community college within an area increases the number attending college by at least 15%, It is estimated, therefore~ that additional community colleges will D2ndle primarily the extra students they generate and that the university and four-year institutions will continue to grow according to present patterns. New community colleges will represent net additions in costs~ since enrollment and costs of other institutions will continue to grow as aDti~ipated

As pointed out previously~ there are two means by

which community ju~ior col~eges can be established and made

eligible for state funds. The Board of Regents is empowered

to establish new ins~l~utions as a part of the University

System, TIndsl.' ',~;:!e J\1,:l::,Ol" College Act of 1958 ~ local govern-

mental v.rdt:s \I,i __ G~1 ;~8.X:~,~lEs power can qualify to operate their

own community so~lege5 and reoeive state support in the

amount of' t:.>n'r- ""u".J.' +:udan-l- 3) 0 . ........ '-' . ,_~,,n'.n~, 1r:') V""'YA ' :'c'',',\-_i~4.~-_-i:",Q~ ~:_

j .L.

J...

,_1'J

..r..,.'1O ......,

"""""'.....

"- v.~

To date i)

no inst1tu~ion bas b~2~ by Js~ab:ished the latter means,

The DeKalb Cc.,J..mc.y CO;;1.;,:).(l:1. ty 0:L.lege ~ n'JW under Gonstru.c".

tion ll may become the':;,

The posEibility of a dual system raises a number of
questions Since the 10c&1 board will bs the governing authority and since the Board of Regen~G has been given the authority to establish s~andards ~or curricula and
operations p what will be t~e relatlonship of the local board to the Board of Rege~ta? A second q~est1on is the relationship of the loca_ scjool board ~o the State Board
()f Education as far as et.e cDmmunity coLLsge i3 concerned, hird. what will be the re~ationsh1p between ~he State ourd of Education and its responslbilit18a fo? locally
verned community colleges D and the Boa~j of Rege~ts and its responsibilities? It appea~s t~at no c~e fully knows the answers to these q~eBtlons,

It is suggested that a single un~form plan fo~ governing and coordinating communit~r ,jun:!.or colleges would Je preferable. The least drastic change to accomplish this would be to provide that all junior colleges be part of

"" 18 ..
the University System. If this is donee a community college unit in the central office of the Board of Regents
would be most desirable. A second approach would'be to
establish local governing boards for all community colleges and have the Board of Regents retain the planning.
'0 development D and coordinating functions of these 1nstit~
tions. Either of these approaches would appear be preferable to the present hazy and cooflict-generatlnl p1"ovis ions for a POf3S ib le dual sys tern 01' junior colleges.

Many people are raising questions about the possible

overlapping. duplication, and perhaps competition between

the 26 are'B vocational~,technlc:al schools and the community

junior colleges. There will be possible competition for

students since both community colleges and area Yocational-

technical schools conside~ high school graduatea and adul~a

as their clientele Both es of inBtitutions are par~

t cular'y population n J..

......

.~J.n..t,.E",.>, 1!~l'IVC~v 4~_~",_~II, .~l."nJ. ~".. ,~~..l D~ " , e~J. .~.) O~iiJ o~.~ ~v\I 1~a

,

.4...

terms of ability.

There is the further possibility of dup1ication of
program. There is a growing tendency among vocationaltechnical schools in this country to include general education courses in their technical currlcula a while much of the science and math in technical curricula of vocational-
technioal schools are duplications of content in courses offered by junior colleges. Furthermore. community col.
leges place a strong emphasis on terminal-ocoupational
programs as a conBequen~e. Description of ocoupational objectives for which technological curricula are designed appear quite simj.J.ar In the: :.lteratu.:re of' commu,nlty col.
leges and area vocational-technical sohoolso

Finally~ there is the question of duplication of facilities and administrative personnel o Both programs are essentially education beyond the high schoolo There is no reason why libraries D food service areas, student centers~ and general classrooms should be duplicated for two different institutions within the same community 0 Furthermore~ counseling and guidance about ocoupational objectives and related educational programs will be more adequately and objectively provided by one organizational unit performing all of the functions rather than competitive units whj.ch would tend to "guide" students into th"ei:r
own programso

- 19 -

Attempts have been made in the past' to draw a sharp

line between the work of a junior college restricted to

purely academic offerings and trade schools which restricted

themselves to occupational courses of less th~n college grade.

The rising level of ability and skill needed for most occupa-

tions today and the changing concept of the function of the

community junior college are erasing these distinctions. In

~tates which are taking a lead in this movement, notably

California, Florida, and Texas. emphasis is being placed

on "education beyond the high school" and comprehensive

institutions are being developed which provide all of the

needed services at one location in the community.

'

One possible alternative is to place all education
beyond the high school under the Board of Regents and prOVide for higher level terminal-technical education in the oommunity colleges. Another alternative is to place all community
colleges under the State Board of Education and give it the responsibility for bath college-parallel work at the 13th and 14th years, as well as vocational-technical training. The third alternative is to create a separate board for
governing and coordinating community colleges and area technical schools, The fourth alternative is to continue present arrangements substantially as they are, but to request the
University of Georgia to provide college-parallel work in those vocational-technical schools located where junior colleges do not exlRt. This can be accomplished through
the off-cclln;)us center prograrrl"

A fifth possibility 1s to experiment with cooperative
planning and. operation of comnrunity colleges and area
vocational-technical ~chools in communities where facilities do not already exist. Under such a plan the community college would plan for specialized facilities it needs and the
area vocational-technical school for the facilities it requires, with joint planning of facilities which could be used by both programs o Thus a two units would be constructed on the same site but each would have its own program and administration o A modification of this would be to jointly employ a chief administrator who would have
two assistants. one of whom would have responsibility for the col Ieee program and the other for the area vocationaltechnical program.

= 20 =
The accompanying map shows that there are 6 locations in the state which have both junior colleges and area vocational-technical schoolso There are three locations which have higher education institutions other than junior colleges, plus area vocational-technical schools o Five locations have junior colleges but no area vocationaltechnical schools, while there are 10 locations which have area vocational-technical but no pUblic institutions of higher education.
This situation would make it quite difficult to assign responsibility for both programs to either of the two boards only, but emphasizes the necessity for cooperative thinking and planning before additional units of either kind are establishedo It also emphasizes the need for establishing formal coordinating arrangements between the two boards and their staffs to deal with program relationships in those communities having both junior colleges and area vocational-technical schoolso

_. 21 -
Vocational - Technical Schools

in relation to

Un1,:~~si~l ~ystem Institutions

Vocational school

* Junior college Vocational school &

OLK

junior college Vocational school & public other than junior college

.Vocational school ..
junior college &
other public college

Bureau 01 Bus;n8J1 Research CoJlege 01 Business Administra'ion The Un;ve,,;1y 0/ Georgia Athens_ Georgio

GOVERNOR'S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET, S. W. ATLANTA, GEORGIA
STAFF MEMORANDUM NO. 10 THE E L E MEN TAR Y AND SEC 0 N DAR Y S C H 0 0 L PRO G RAM S (PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 18-19, 1963

TIlE ELEMEN~~D_~_S;;;.,;=E;;;.C,;..;O;..;;N_D...A._R_Y;....,,;;.S..;.C.;;,;,H_O.O._.L_P;..;R;.;..O_G...R. ..-A-.M..S...
1. The improvement of education depends on the improvement of all essential elements of the school program.
20 The school plant and its facilities must be designed to provide adequately for all aspects of all the programs to be offered.
3. The school curriculum must provide for the achievement
of all educational objectives, with the range of offerings and flexibility necessary to meet individual differences of pupils and changing needs of community and state c
4. Administrative leadership is the catalyst which brings
about the coordinated functioning of all elements of educational improvement"
5. A competent teacher in each classroom is perhaps the
most important single factor in the learning progress of pupils and in meeting their individual needsc
6. Highly qualified teachers, teaching in fields for which they are prepared, become more efficiently effective when provided with the best of supporting services and modern teaching devices and materials.
7. There are many instances in Georgia schools where
one or more of the above factors are involved in hampering effective educationo
- I-

THE ELEMENTARY AND SECONDARY SCHOOL PROGRAMS

By Georgia statute, the grades 1-7 inclusive are designated as the elementary grades and 8-12 as high school grades. In actual practice any nUII:ber and/or combination of ~rades may be found housed in separate buildings -- ranging from a few one-teacher schools with several grades to the entire range of grades 1-12 in one building, as shown in the following tables. This is often determined more by avaj.lable plant facilities than the kind of arrangement cesired.

GEORGI/>, PUBLIC SCHOOLS

-----' ------------ 1961-62 ....------------~"_._._. _. Number of Schools

GRADES IN SCHOOL

1----
l!hi te

Nerrro

Total

..... t - - -

- 1-2

- 1-3
1-4

-~-----------------~--

0 6 11

1

1

1

7

2

13

1-5

22

8

30

_. 1-6

=1

1-8 1-7 ---~---------------------~------------~~---

- 1-9
1-10
'. 1-11

-------~--------------~---------~--~------

lin
1.1G6
317 11 0
uf '

LIO
184 104
6 1 2

181 650 421
17 1 2

1-12

136

6-12



7-12 8-12 9-12

------------------------------------------,,'.-.

5 12 101 G2

10-12

'.

Other Hig'h 3choo1;.:;* -------'.

II!
li

'. 6-8 '. 7-8 '. 7-9

---------------~---------~-----------------

,. 8-9 ---------------~------

'(;'j
14 10 11

Other ** -----------~-----..

26

124

260

4

')

4

16

27

128

6

68

3

17

10 i

16

1

10

2

16

2

12

1

12

16

42

Grand Total --------------'. 1,380

549

1,929

* Complete high schools with miscellaneous combinations
of elementary grades.

** Special schools) vocational schools) and schools with
miscellaneous grade combinations

- 1-

- 2-

The organization of grades and housing are important to a good learning environment. They should be given careful attention in school planning. It is of perhaps greater importance that the facilities be adequate for the pupils involved, and the program desired, than that they be located in any certain way.

SIZE OF SCHOOLSI
By Number of Teachers 1961-62

White Negro Total

Number of Schools Having:

One Teacher ---------------

7*

5

12

Two Teachers --------------

8

6

14

Three Teachers ------------ 29

9

38

Four Teachers -------------

49

16

65

Five Teachers -------------

44

15

59

Six Teachers --------------

62

22

84

Seven Teachers ------------ 71

17

88

Eight Teachers ------------ 79

22

101

Nine Teachers ------------- 60

30

90

Ten Teachers -------------- 43

17

60

Eleven Teachers ----------- 45

16

61

Twelve Teachers ----------- 39

11

50

Thirteen Teachers --------- 45

23

68

Fourteen Teachers --------- 41

20

61

Fifteen Teachers ---------- 43

31

74

Sixteen Teachers ---------- 57

12

69

Seventeen Teachers -------- 52

16

68

Eighteen Teachers --------- 58

13

71

Nineteen Teachers --------- 46

8

54

Twenty Teachers and Over --+--5-02-00+-24-0--....- -74-2 - -

Total Number of Schools --- 1380

549

1929

* Atlanta City has two Special one-teacher schools, Aidmore
and Grady Hospital, which are not regular one-teacher schools. Sumter County also has one school, Anthony, that is in the same category.

1 Georgia State Department of Education, Annual Report, 1961-62. pp. 407 and 409.

- 3-
For example, there are arguments for separating pupils in grades 7, 8 and 9 from other ages and placing them in separate junior high scroolso These early adolescents have developmental characteristics which make them misfits in children~s groups and also in the more mature groups of senior high schoolo The junior high schools provide for gradual adjustment from single teacher elementary classes to a multi-teacher day in the high school o A separate school plant -- designed expressly for junior high activities -- might facilitate achieving these ends o Definite planning, however, could overcome the difficulties and provide needed facilities under any of several other arrangements of grades 0 The important thing is that the needs be meto
Essential Elements of School Programs
The kind of school program at all levels necessary to provide the scope and quality required for meeting the needs of individuals with widely differing capabilities and interests must include a number of essential elementso These must be tailored to the age level and needs of the pupils, and include the following~
1 0 School plant and facilities adequate for the program to be offered o
2 0 Curricular offerings adequate to achieve the objectives of the school o
30 Administrative leadership to stimulate effec-
tive operation and continued improvement of the educational systemo
40 Sufficient number of highly qualified teachers,
competent in each field for which they are responsible o
50 Supporting personnel and services which assist
in full utilization of teacher competence and administrative efficiencyo
60 Materials and equipment designed for highest excellence and efficiency in teaching and learningo
A complete analysis of all these elements is beyond the scope of this memorandum o The following sections point out some of the important aspects of each as they apply to elementary and high schools in Georgia.

School Plant and Facilities
The modern school plant is expected to provide for more than the qualities of being safe and sanitary -though these are of major importance o It must provide appropriate space and facilities for each of the desired activitiese Elementary schools organized for self-contained classrooms must have furniture which adapts to quiet study and to active games 0 There must be storage space appropriate to art supplies as well as books j wraps and overshoes e Desks must fit the size of the children c If the needs of all are to be served~ there must be a place and equipment for hammering and sawing and a game of baseball, as well as for individual research e
The modern school is so constructed that noisy activities do not interfere with study. and if school is to be in session in summer~ it has temperature controle A gymnasium, lunchroom and auditorium are standard features e
A comprehensive high school with a broad range of programs must have provision for each, alsoe Industrial arts cannot be taught in a room equipped for English or social studies c A physics course cannot be effective without an adequately equipped laboratoryo Language labs and mathematics labs are becoming standard equipmento Remedial reading instruction and individual guidance counseling require quiet and privacyo
Although some improvising is always possible i a school plant which does not have adequate provision for each segment of its program is to that extent hampering effectiveness of educationo
Classroom Needs
As of the fall term of 1963, an additional 2,047 classrooms were needed in Georgia for which no funds were provided o The school age population is projected to increase by 42% from 1960 to 19750 1 A similar increase in classrooms must also occur in order to house Georgiais school childreno The increase of 25 i OOO to 30,000 pupils per year will necessitate the addition each year, until 1975, an average of
1 Bureau of Business Research, University of Georgia, Georgia County Data Book. 19630

- 5-
more than 1,000 classrooms o These additional classrooms will only house the added enrollments and will not take care of the need for replacement of antiquated school buildings, nor will they alleviate the crowded conditions prevalent in so many Georgia schools o
In the 1963-64 school term, one out of every 10 accredited elementary schools in Georgia is rated deficient on the basis of oversize classes by the Georgia Accrediting Commission, In addition) 26 Negro and 15 white elementary schools are deficient in the physical characteristics of existing school plantso Of the accredited high schools, 11 white and 12 Negro school plants are also rated as deficient, It seems reasonable that the considerable number of unaccredited schools represents even greater deficiencies and needs a though exact data are not available o
In November 1963 j there were 73,559 school children in
the state for whom there was no adequate space, and 32.370 children were housed in substandard classrooms a according to superintendents~ reportso About 11,000 were in classes on double sessions, with more than half of these in the Atlanta metropolitan areao This fact highlights the problem of especially crowded conditions in counties which are rapidly gaining in population i as opposed to those experiencing a population declineo The urban trend poses an additional problem in school housing because available classrooms may not be located in the areas where they are most needed, School building plans must increasingly be based on careful studies of population trends and changing needs o
The School Curriculum
The heart of a school program is the organized plan for guiding the learning of the pupilsc IdeallYa this plan provides for smooth a continuous progress of each pupil in his development from kindergarten to graduationo The curriculum is broad enough to offer courses and activities designed to attain all the objectives of general education for each pupil, and the specialized offerings needed for college entrance and for terminal,general and vocational programs for pupils with a wide range of individual differences 0
There is no prescribed list of "courses" for the elementary schools in Georgiao The state bUlletin, Curriculum Framework for Georgia=c~~ prepared by a large representative committee of educators under guidance of the State Department of Education, sets forth the objectives and broad guidelines for local systems to use in developing elementary programs 0

~
- 0-
In order to achieve the objectives, the curriculum must draw content from, and provide activities related to, all major fields of knowledge. These are usually defined broadly as:
Language Arts Social Studies Science Mathematics Art f\1usic Health and Physical Education
State curriculum committees are also developing and revising curriculum guides for local schools and systems in each of these areas. These guides give suggestions for the curriculum for grades 1-12 in each case in order to provide continuity of learning through all grades.
The Elementary School Curriculum
In most elementary schools each teacher is responsible for all subjects. To develop competence in all subjects is a major problem of teacher education. Yet the advantages of one teacher who knows each child well and guides his total development are important also.
Since all elementary pupils study largely the same ~lnd of content, adapting to individual differences in capabilities and interests of pupils involves adjusting rate and depth of learning and emphasis among SUbjects. The teacher's task is one of knowing and understanding each pupil well and tailoring the work of each to his individual characteristics.
Studies of dropouts and failures in school point up the importance of the early years to later progress. The primary grades are increasingly prominent problem areas. The ability to read well is one of the crucial elements in school success and resultant attitudeso The provision of individualized remedial work in reading -- and often other areas -- seems one of the "musts" for solution of many problems.
Attention to the culturally deprived children has recently brought the suggestion that even earlier remedial work can be an important factor in overcoming the difficulty. It is likely that statewide kindergarten programs, and perhaps nursery schools for many areas, will be considered necessary in a modern elementary school program.

- 7-

Dependable data on the quality of learning and achievement in elementary schools in Georgia are scarce indeed. There is no consistent statewide testing plan to provide comparable data among systems.
The dropout rate, school failures, and complaints from high schools about deficiencies of entering pupils are evidence that problems exist which need attention. The following table shows the results of some reading tests given as a cooperative study by the University of Georgia and the State Department of Education.

...
Reading Comprehension of White and Negro Pupils in Grades 4-12, Georgia - 1962

Actual Grade

Mean Test Grade Placement

White

Negro

4

4.6

5

5.6

6

6.2

7

7.3

8

7.5

9

8.7

10

9.3

11

10.3

12

10.3

Participating were 42 county systems and 8 independent systems. The California Achievement Test Battery was used and more than 30,000 pupils were included in the analysis.
The average white pupil is a little above the norm in the elementary grades, but lags behind as he goes up the eduoational ladder. Negro pupils show consistent and striking retardation in reading comprehension as measured by this test.
Improvement of the elementary school program involves improvement of eaoh of the essential elements included in this memorandum. At the center of the program of improvement is a oompetent teacher -- efficiently supported by all the other personnel, services, and faoilities necessary for effeotive education.

- 8-
The High School Curriculum
The curriculum of the comprehensive high school, geared to meeting the needs of all pupils, must have breadth and flexibility in two major directions. It must provide elective choices for those with differing educational and occupational objectives -- and within these differing patterns must_provide still further for a wide range of individual differences in ability, interests, and motives. The effects of size of school and class on providing such a program are covered elsewhere"
Dr. Conant recommends that a highlsChool should offer and require for graduation as follows:
GENERAL EDUCATION - The requirements for graduation for all students should be as follows:
Four years of English, three or four years of social studies -- including two years of history (one of which should be American history) and a senior course in American problems or American government -- one year of mathematics in the ninth grade (algebra or general mathematics), and at least one year of science in the ninth or tenth grade, which might well be biology or general physical science. By a year, I mean that a course is given five periods a week throughout the academic year or an equivalent amount of time. This academic program of general education involves nine or ten courses with homework to be taken in four years and occupies more than half the time of most students, whatever their elective programs.
He further states that the more able students should complete 16 or 18 units in academic subjects -- perhaps 20 for gifted students -- including 4 years of a foreign language and advanced courses in mathematics and science. Vocational programs should be sequential programs leading to salable skills. Every student should have work in art and music.

1

Conant, James B., The McGraw-Hill, 1959, p.

A47m. erican

High

School

Today,

- 9-
Comparison of these suggestions with the following chart of the high school curriculum for Georgia shows considerable similarity.

GeorgiaVs High School Curriculum
English

All High School

Students Must

Have These To

Graduate~

c

..

3 Units

Stucients Quali-
fied To Do So, Must Also Take These Courses~

All High Schools
.Must Offer
These:
4 Units

Social Studies (Including U.S. History and Government

3 Units

3 Units

Biology (Including
Human Biology)

1 Unit

1 Unit

Mathematics

1 Unit

2 Units

Science or Mathematics

1 Unit

Chemistry

1 Unit

1 Unit

Physics

1 Unit

1 Unit

Foreign Language

2 Units

Vocational Subjects

Must Be Offered

Health

1 Unit (Unless Given in 8th Grade)

Algebra

2 Units

Required

9 Units

Electives

9 Units

TOTAL FOR GRADUATION

18 Units

Source: State Department of Education, How Georgia Operates Its Schools, pc 390

- 10 -
This framework provides quite well for planning a program "on paper." What actually results in the learning experiences of pupils depends perhaps even more on getting them into appropriate classes and on the quality of instruction. The fact that a pupil has earned the units needed for graduation does not guarantee that he is educated to any standard degree.
The results of a study made in 1959-60 show enrollments in the various subject fields, and appear on pages 11 and 12.
As might be expected, the highest enrollments are in English I (9th grade), biology, world and American history, and algebra, which are standard required courses in most schools. The high enrollment in business education is due to the fact that several courses are included in this category. Reduced enrollments reflect dropouts in advanced courses -- but not enough to account for the small enrollments in physics, foreign languages, and advanced mathematics. These are more likely due to limited offerings, faculty, and effective guidance programs -especially in the small high schools. These are essential to adjusting program to individual differences.
Attempts to adjust the curriculum to the child have resulted in ability groupings of various sorts -- with different course sequences or "tracks" planned for gifted, average, and slow, or similar curricula planned as tracks of different difficulty levels -- the separation of vocational from academic o Many plans are being tried with varying success, and problems are involved in each one.
The most promising practices seem to derive from cooperative effort of competent staffs, working at state, local, and school levels with adequate resources -- as shown in the following sections.

- 11 -

SOME GENERAL EDUCATION SUBJECTS TAUGHT IN GEORGIA HIGH SCHOOLS
(1959-60)
(High Schools in this Survey - 520; Number of Students - 190,100 0 )

ENGLISH LANGUAGE, ARTS Total Enrollment - 199,866

(Some students enrolled in more than one class)

SUbject

Noo of
- Students

English I English II

54 j 659 49;)001

English III

42,176

English IV

31,928

Advanced Literature

202

Advanced Composition

239

Creative Writing

97

Drama

1,039

Business English

1,308

Journalism

1,717

Accelerated Reading

421

Remedial Reading.

1,048

Spelling

11,626

Speech

2,090

Other English Courses 2,315

SCIENCE Total Enrollment - 146,163

Noo of Students

General Science

46.373

General Biology

52,014

Human Biology

3,242

Chemistry I

18,460

Chemistry II

460

Physics I

9,167

Physics II

150

Applied Science

166

Earth Science

74

Health

14,405

Other Science Courses 1,652

FOREIGN LANGUAGE Total Enrollment - 36,290

Subject

Noo of Students

Latin I

7,512

Latin II

5,091

Latin III

209

Spanish I

5,144

Spanish II

2,622

Spanish III

81

Spanish Conversation

49

French I

lOj7 46

French II

4,365

French III

109

French IV

14

French Conversation

17

German I

134

German II

47

Other Language Courses 150

MATHEMATICS Total Enrollment - 139,535

Subje21.

Noo of Students

General Mathematics Algebra I Algebra II
Advanced Algebra Plane Geometry Solid Geometry Trigonometry
Arithmetic Review
Business Mathematics Consumer Mathematics Shop Mathematics
Other Mathematics Courses

32,5 46 42,513 26,0 43
3,540 15,485
378 4,045 1,429 9,921
750 76
2,809

- 12 -

SOME GENERAL EDUCATION SUBJECTS TAUGHT IN GEORGIA HIGH SCHOOLS
(1959-60)

SOCIAL STUDIES Total Enrollment - 165,508

Subject

No o of Students Subject

Georgia History Georgia Government

311 271 511

American History

42 8 287

American Government 19~156

Civics

18$367

Citizenship

343

Problems of Democracy 1$169

Geography

121)238

World History

431)367

Western Civilization

History

54

History of South America
History of Europe Social Science I Social Science II Social Studies
Family Living Psychology
Consumer Education
Economics Occupation Guidances Other Social Studies
Courses

No o of Students
70 63 461 33 2,620 5,774 1,454 81 5.905 3,045
5.239

VOCATIONAL EDUCATION CURRICULUM

Course

High School Students

Adults

Agricultural Education
Business Education* Distributive Education Homemaking Education Trade & Industrial
Education Industrial Arts
Education*

25.914 89,975
806 56,423
7.383
14 ,000**

17~723
9.412 6,229 22,019
23,245

*
**

Not federally financed o 14,000 - white only!) Negro

not

compiledo

Total
43,637 99.387
7,035 78,442
30,628 14,000

Source~ State Department of Education, How Georgia Operates Its Schools. ppo 39-400

- 13 -

_...... . ;A..;.,d;,;-m-.;.;.i...n....i...s...t..r...a....t. ive

........... Leadershio
_.;.,;,;.,~.....;;..

The school administrator has two major functions, business management and instructional leadership. Superintendents, principals and their assistants are equally responsible in the two areas. Both are essential to a good school program.

Almost every writer and speaker on the sUbject deplores the fact that business matters take up the time of the administrator at the expense of the leadership function. Administrators themselves complain of being overloaded as purchasing clerk, office boy, and sympathetic ear to parents.

The school administrator is the top executive of the school organization, whether at the state, local district, or school community level. He is the king pin and catalyst who causes things to happen to bring about improvement. It often is not obvious just how they happen, since leadership may work in ways intangible to the casual observer.

Many studies have shown that the school systems having exceptionally well-qualified and able superintendents also have the most effective school board action. They tend to have the most efficient business management practices, to employ better qualified teachers and give them effective assistance in providing for inservice programs to keep up-to-date, and in developing curriculum and instructional improvement programs.

Much the same kind of results are obtained in a school which has an unusually able principal. Difficulties are overcome and the learning environment improves in much better than average fashion. In short, the school administrators are the key people in educational improvement. It is they who guide the process of developing and meshing together the essential elements of school programs.

Certification of Administrators
Admirable progress has been made in recent years in raising the level of qualification of superintendents and principals. Improved certification requirements have contributed greatly to this trend. The Accrediting

- 14 -
Commission also refuses to accredit any school in any system having an unqualified administrator (exceptin~ those with more than certain required years of service o
At present, 160 of Georgia's 196 county and independent system superintendents hold Standard Professional Certificates (SU-5) based on a master~s degreeo Another 17 hold provisional certificates, while 19 are not certificated as administrators 0 A high proportion of principals are professionally certificatedo
Certification is only one indicator of competence. Other factors operate to allow persons to stay in the field without effective performance 0 Continuous study is necessary to keep up with new developments and to increase effectiveness o "Operation Bootstrap" is a good example of activities aimed at school improvement through improved administrative functioningo
Teacher Effectiveness
The entire structure of an educational system exists for the purpose of providing for a teacher to work with pupils in a classroom o The quality of instruction, in the final analysis, hinges on the competence of the teacher o Teacher effectiveness depends on the extent to which other staff and facilities provide support to teaching efficiencyo
Obtaining and keeping enough qualified teachers is a complex problem o It involves recruiting good students, good teacher education programs, adequate salaries, working conditions, teaching facilities and materials, and many other things 0 Some of the factors most directly related to the quality of the school program are analyzed in the following sections o
Pupil-Teacher Ratio
The effectiveness of a teacher can be diluted by the number of pupils he must teach o Thus the pupilteacher ratio is an important measure in judging the quality of Georgia~s pUblic schools. In the fall of 1961, Georgia ranked 46th among the states in the number of pupils per classroom teacher in public

- 15 -
elementary and secondary schools. The average pupilteacher ratio for the United States was 25.6 pupils to 1 teacher -- Georgia's was 28.9 to 1.
The following pupil-teacher ratios are given for Georgia on the basis of average daily attendance. This is the ratio used in allottIng teachers In Georgia. National pupil-teacher ratios based on enrollment are not directly comparable.

Georgia Pupil-Teacher Ratios Based on Average Daily Attendance
1962-63

White

Negro

Both Races

Elemen- Secon-

Elemen- Sec on-

tary dary Total tary dary Total

Counties 28:1 22:1 25:1 28:1 22:1 26:1 25:1

Independent 26:1 21:1 24:-1 27:1 20:1 25:1 24:1

State

27:1 22:1 25:1 28:1 21:1 26:1 25:1

A pupil-teacher ratio based on ADA of 28 to 1 when converted to a ratio based on enrollment results in a ratio of about 31 to 1. Such a ratio is an indication of badly overcrowded conditions. Yet this is the average ratio for county system elementary schools in Georgia. There are also several systems with high school pupil-teacher ratios of 28 to L
The systems with ADA over 2,000 tend to have higher pupil-teacher ratios than is true for the small systems. This is partially caused by rapid growth of enrollment that often outpaces expansion of schools in the metropolitan centers, while some low density rural areas have decreasing enrollments. The relatively higher teacher allocations under MFPE to low density population areas account also for some of the differences in pupil-teacher ratios. However, a great deal of the difference is due to deliberate effort on the part of systems to decrease pupil-teacher ratios. For

= 16 -
instance, the difference in pupil-teacher ratios of two large systems in metropolitan counties, with similar teacher salaries and enrichment programs, is a reflection of the cost-per-child in the two systems o In this example, the most significant factor in the difference of the costper-child is the number of pupils per teacher in the two systemso

Cost-per~Child and Pupil~Teacher Ratios of Two Large Systems in Metropolitan Counties
1962-63

County ~

County B

Pupil-Teacher Ratio

2lg1

Cost-per-Child

$215.11

Burdens of Non=Teaching Duties
The effectiveness of a teacher is also based on the amount of time he has for teaching as compared to other activities o The teacher who must act as bookkeeper on lunch room accounts. and as sales and collection agency for extracurricular activities and fund raising, is wasting valuable teaching skill and timeo The school with inadequate custodial and secretarial help is impinging on the principal~s and teachers' skills and time, which are often stretched too far without the addition of extraneous dutieso
A teacher's effectiveness is diluted not only over the number of students in the class, but also over the number of periods he is teachingo High school teachers often meet 150 students a day in 5 periods, with additional supervisory duties the 6th periodo Dr o Conant recommends, "Each student should be required to write an average of one theme a week o Themes should be corrected by the teacher o In order that teachers of English have adequate time for handling these themes, no English teacher should be responsible for more than one hundred pupils."l
I Conant, James Bo , The American High School Today,
McGraw-Hill, 1959, po 500

~-7 -
If teachers are to keep abreast of new developments in science. mathematics. and other fields, they must have time to do so. Dealing with pupil differences. stimulating independent study, and presenting challenging content are teaching functions that require planning and preparation. An overloaded teacher will have no energy left to properly fulfill these functions.
Requests from school administrators ask that improvement in pupil-teacher ratios through allotments under MFPE be achieved by allocating specialized personnel -principals. counselors, etc. -- rather than by lowering the ratio in general. The effect of this would more nearly insure that needed personnel would be provided for a complete school staff.
Teaching Aids
While no amount of good teaching material can take the place of an excellent teacher, a teacher's affectiveness can be increased by the use of good teaching aids.
Audio-Visual Materials
A wealth of audio-visual material is available to the Georgia teacher who wishes to make use of it. The state has one of the largest film libraries in the nation.
In 1962-63. about 87% of Georgia's schools made use of
films and film strips. An average of 126 films per school were ordered from the state film library. An estimated 1,200 tapes were used by the schools.
A limiting factor in the full utilization of available audio-visual aids is the availability of projectors and tape recorders in the classrooms. Such equipment is purchased by local systems on a 50% matching basis under the National Defense Education Act. If the school has insufficient equipment, the amount of time and effort involved for a teacher to move pupils to the equipment, or vice versa. may not warrant the use of the instructional help of the audio-visual material.
Programmed instruction through texts and teaching machines is another very recent technological innovation available to teachers. It has been demonstrated that "self help" by pupils using this aid can save a great deal of teacher time. Their effective use, however, depends on proper planning and reorganization of classes and scheduling.

- 18 -
Textbooks
The most vital supporting service a teacher requires is books. Free textbooks have been provided in Georgia since 1937. The 1963-64 average state expenditure on textbooks per child is $3 0 60 j an increase of only sixty cents per child from the $3 000 established in 1937. During this period the cost of books has soared, and the modern curriculum requires more books per student. Local systems supplement the state textbook allotments to varying degrees. The average expenditure per child by local systems in 1961-62 was $015. The average cost of a set of new books for grades 1-7 1S $12 0 00; and for grades 8-12 it is $18 000 0
The low expenditure per child on textbooks results in students having to share textbooks, and in a lack of upto-date material in many classrooms.
An annual increase of $.50 in the state expenditure per child would bring the textbook expenditure to an average of $6.00 by 1969-70 -- a figure more in keeping with inflated costs.
Libraries
In 1962-63, 87% of all public schools in the state had central libraries. All high schools had central libraries. The average number of books available per child was 5.3. The American Library Association recommends 10 books per child in schools of 200 or more students.
Of the librarians employed in Georgia public schools, 47% did not qualify for certification as librarians or teacher-librarians 0 Of the schools with libraries, 39% were served by teachers with full-time teaching responsibility who performed library duties before or after school.
The average expenditure for library materials in 1961-62 was $1.56 per child. The American Library Association recommends a per child expenditure of from $4.00 to $6.00 for books alone, with variations by size of school.

- 19 -
At present the state provides matching library funds of $20000 per state allotted teacher for every $10 000 provided by local systems, The MFPEw s relatively higher allotment of teachers for systems with lower density population therefore affects distribution of library funds,
Educational Television
The most dramatic innovation in strengthening teacher effectiveness has been the use of educational television. It enables a "master" teacher, with specialized knowledge and unusual resources for presenting the material. to reach many students at once o It has extended tremendously the range of such a teacher. in areas such as science, mathematics j languages~ and music o The use of television also enables schools to offer courses in the curriculum which otherwise they would be unable to staff with qualified teachers o
Many studies of the use of educational television have shown that achievement of pupils receiving television instruction equaled or exceeded that of pupils receiving regular instructiono There is no doubt that educational television can effectively supplement the work of the best teachers and also those less well-qualified -- if the programs broadcast are meshed into the curriculum of the schools and the planning of the teachers.
It is of prime importance that the teachers who are to use the programs are involved in the planning of the program. Scheduling of broadcasts must fit the school schedule and the programs must be of highest educational and technical quality to be effective.
Each of these requirements demands an adequate staff of specialists, and materials and equipment adequate for developing and broadcasting the needed range of offerings at a high level of efficiency. Half-way provision will likely result in limited use of programs and poor return on investment.
Teacher Salaries
The average annual salary in 1962-63 for classroom teachers in Georgia was $4,637, as compared to the United States average of $5,735 -- a difference of $1,0980 In spite of a 75% increase in annual salaries for instructional staff in Georgia public schools from 1952-53 to 1962-63.

- 20 -
Georgia still ranks 41st among the states in average salaries paid to classroom teachers and to the total instructional staffo The chart on the following page illustrates the comparison of average teacher salaries for Georgia and other southern stateso
This comparison of average annual salaries reemphasizes the necessity for salary increases for teachers in Georgiao A proper salary schedule. however. must do more than just initially attract qualified teachers at a high enough wageo An adequate salary schedule must also provide increases to hold teachers in the profession and continue as career teacherso It must give incentives for teachers to improve their competencies. and reward their professional achievement D
High standards in the selection of teachers and enforcement of these standards are essential in staffing the faculties of Georgiaffs schools o Establishment of standards and their enforcement are functions of the certification unit of the Department of Education. However. these standards will have little meaning unless the salaries correspond to the standards, so that a sufficient number of qualified teachers will be attracted to. and induced to remain in. the teaching profession. To encourage teachers to obtain post-graduate education and the 5 and 6 year certificates. salaries must be set competitively with other professionsD Otherwise ambitious teachers who obtain graduate degrees and graduate students entering the labor force will continue to be siphoned into fields other than t~achingD
The present difference in the state salary schedule between salaries for a beginning teacher with a 4-year certificate and one beginning the fifth year of teaching with a 6-year certificate is only $1.600. The seventh year of training (or the doctoral level) is presently not included in the state salary schedule.
The entire spread in the present schedule between the salary for a teacher with a4-year certificate. from beginning to the tenth year of teaching. is only $2,100 or 57%0 The maximum salary in the schedule is $5.800 for a teacher with a 6-year certificate in the tenth year of teachingo

- 21 -
ESTIMATED AVERAGE ANNUAL SALARIES OF CLASSROOM TEACHERS IN GEORGIA. U.S. AND OTHER SOUTHERN STATES 1962-1963
$6.000 r------------------------~
$5735

5'000

$5450

$4975

$4637

4000

$4150

$3998

3000

o

U.S.

FLA.

N~C. GEORGIA

S~C.

ALA.

Source: U. S. Departmont of Health. Education & Welfare. Office of Edudation. Digest of Educational Stati~tics. 1963.

- 22 -

The narrow difference between beginning and final salaries in the state salary schedule has resulted in part because of equal across-the-board sal.ary increases to all Georgia teachers. Supplements paid by some local systems are not on an equal across-the-board basis.

Since a $100 increase on a $3,600 beginner salary is a much higher percent increase than the same amount on a
$5,700 salary, the effect of across-the-board increases ov~r the years has been to narrow the relative spread in the salary schedule.

The State Salary Committee, appointed by the State

Board of Education in September 1962. has carried out

extensive study of the salary schedule, and in March 1963.

submitted recommendations for a new salary schedule. As

shown on the following pages, it proposes a spread of 75%

between 4-year certificate. beginning teaching, and 6-year

certificates~ beginning the 15th year of experience. The

proposed "Professional Salary Schedule" is based on an

index, \'{ith the 100% base set at the 4-year certificate

level, for beginning teachers~ Each possible level pn

the schedule. both in terms9f years of experience and

years of professional colleg~tralT.ling.is rated as a

percent of the 100 base ind~x., A ~omparison between the

proposed index and the ratio~wlth the present salary

scale is shown on page 24.

.

It will be noted that the increases in the proposed
schedule are much more rapid during the first five years of teaching than is t~ue at present. These rapid increases are designed as an incentive to retain qualified teachers
in the profession. Moreover, there is a substantial spread between salaries for beginning teachers with four years of professional training and the higher salaries to be paid
experienced teachers with advanced degrees. This is designed to reward teachers who continue their formal training and thus move into the higher certification levels

. It has been suggested that a beginning salary of $4,000 is too low to attract and hold teachers in some scarce competitive fields, and that the highest salary on the
index scale is not sufficient reward for a lifetime of proressional service. Page 23 shows the result of apply-
ing the index scale to a base salary of $4,500 for beginning teachers.

PROPOSED PROFESSIONAL SALARY SCHEDULE BASE INDEX (100%) - FOUR YEARS OF TRAINING
($4,500 Base)

YEARS OF EXPERIENCE

rs. f rof. allege
rain.

Beginning 1st Yr. '

~

:>,

pc:

H

Q)

ttl

'd

r-l

s:1

ttl

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tJ)

Beginning 2nd Yr.

~

:x:

~

Q)

ttl

'd

r-l

s:1

ttl

H

tJ)

Beginning 3rd Yr.

~

pc:

~

Q)

ttl

'd

r-l

s:1

ttl

H

tJ)

Beginning 4th Yr.

~

:>,

pc:

H

Q)

ttl

'd s:1

rc-ol

H

C/)

Beginning Beginning

5th Yr.

7th Yr.

~
:x:

:>,

~

H

:x:

:>, H

Q)

ttl

Q)

ttl

'd

r-l

'd

r-l

s:1

ttl

s:1

ttl

H

tJ)

,H

tJ)

Beginning 9th Yr.

~

:>,

pc:

H

Q)

ttl

'd

r-l

s:1

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tJ)

Beginning Beginning Beginning 11th Yr. 13th Yr. 15th Yr.

*
X
Q)

?-,
i-

*x

.u

0

~

~
ttl

m:x:

:>, H ttl

'd

,--<

':j

rl

'd

rl

s:1
H

:n,~

>::
H

ttl
tJ)

s:1
H

ttl
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7* - - - - -

6

-----

--

- 185 8325 190 S550 194 8730 196 2820 198 8910 200 9000

- 154 6930 160 7200 1,65 7425 169 7605 171 7695 173 7785 175 7875

5

107 4815 116 5220 123 5535 129 5805 135 6075 140 6300 144 6480 146 6570 148 6660 150 6750

4

100 4500 108 4860 114 5130 119 5355 124 5580 128 5760 131 5895 133 5985 135 6075 -

-

3

-- - --

- 91 4095 94 4230 -

--

--

--

--

-

2

- - -

- 82 3690 85 3825 -

--

--

--

--

-- -

1

* Suggested 7th year added.
Source: State Salary Committee.

Nov. 14, 1963
l\.)
w

- ?/l -
GEORGIA TEACHERS' PRESENT AND PROPOSED SALARY SCHEDULE
EXPRESSED AS INDEX RATIOS:I00 = 4-YEAR CERTIFICATE,
BEGINNING FIRST YEAR OF EXPERIENCE.

l:il ....:l ::J Q ul
::r:><:
Ol:il
C!).Q .....
:>-lH 0:;
<::(
1-1
<::(
. ......,...-.---.,.....-. ......( C!) , 4 YEARS OF COLLEGE TRAINING
1 8 0 __-~

~

....:l

::J

Q

l:il
::r::><:

Ol:il

C!)O

Z

:>-lH

0::

<::(

...:l

,<::(

(/)

180

5
~

&6

YEARS

OF

COLL>E"'"G""E'_ TRAI_N_ING

170

/"
I
.I /
llC ..... "

_.- - - _ --r
....... ....

160

."

J'

I /

150

-- --- -~

;,'" ".

140

.;

., / / ;'

;/

130

/

I I

120

I
I

I

I I

110

I I

100

SiC
8
2 4 6' '1310-'12 1 16
YEARS OF EXPERIENCE

90
80
2.....- rt''''''''''''t;"-S .. 10--:12 1 11 16
YEARS OF EXPERIENCE

Source:

- Proposed Inde x - - - Present Ratios
Report of the State Salary Committee to the State Board of Education, March 1963.

- 25 -
Merit Pay
The question of merit pay is often raised when teacher salaries are dlscussed o Many suggest that exceptional teachers should be more highly rewarded for their competency than less ardent and effective teachers o A salary schedule which rewards those who make the effort to improve their preparation partly accomplishes the aim of merit payo However, it does not recognize the individual effectiveness of various teachers with equal amount of education o Unfortunately, a reliable objective measurement of teacher effectiveness has not been designedo This would make it difficult for the state to incorporate "merit" increases in a state salary schedule, beyond those increases that reward ambition or accomplishment in postgraduate studyo
Supporting Services
No school system is complete, nor is it likely to have efficient operation, without the following services to support the instructional programg
Guidance Counselors - As noted often elsewhere in this report, the modern comprehensive high school cannot achieve its purpose without an effective guidance program o The Association of School Counselors reports that in 1962-63, there were 600 persons, full and part time, engaged as counselors in Georgia high schools -- or an equivalent of 377 full time counselors 0 This gives a ratio of 1 counselor to 897 pupils o Most authorities set a ratio standard of 1 to 3000 In order to reach this standard, Georgia would need 1,128 counselors instead of 3770
Testing Program - As part of guidance information gathering and as a "quality control" feature of instruction, a broad and consistent testing program is neededo This should be a statewide program and oriented toward research as a means to improve instruction and adjust curricula. Such an operation requires highly competent personnel and adequate financial support 0 There is no such program in Georgia at present o
School Lunch Program - The growth of the Georgia school lunch program has been very dramatic -- $4,000,000 was expended in the program in 1943 and $32,000,000 in 1963 -- from 21,000,000 meals in 1943 to 93,000,000 meals in 19630 Consolidation and transportation have made it

- 26 -
necessary for more children to have lunch at school o The relation of nutrition to mental and physical fitness makes the school lunch a vital part of an educational program o If the school lunch program is to meet the needs of all children, local and state support is neededo
In 1962-63, 59% of the pupils -- involving 1,790 schools -- participated in the school lunch program o
Of the annual expenditure of approximately $32,000,000, approximately $20~OOO~OOO is spent locally for foodo The school lunch staff numbers some 6,000 employeeso Last year,
$4,769,653099 in federal funds went to the school lunch
and special milk programs o
A business of this size requires sound management and business principles. Standards are needed as guides for local and state administration o The greatest needs of the school lunch program, as listed by the School Food Service Association, are as follows:
10 To increase participation of boys and girls in school lunch a
20 To provide adequate facilities for all programso
30 To increase school lunch leadership by assisting
counties in employing professional school lunch technicians a
4 0 To utilize school lunch as an educational labora-
tory in nutrition and social relationso
50 To establish training programs for staff o
6 0 To certify and classify all school lunch managers and supervisorso
70 To provide incentive pay for training when funds
are availableo
80 To clarify the state laws and make it legal for states and counties to spend educational tax funds for school lunch a
Curriculum Directors - (formerly instructional supervisors) are delegated much of the responsibility for leadership in program improvement 0 The importance of the visiting teacher has been noted in relation to dropoutso Both positions are essential parts of an effective and efficient school system -- especially as cogs in the gears of a

- 27 -
built-in improvement arrangement. Research and planning functions -- coordinated closely with, and into. those of higher education -- are basic to long range improvement of public education. from kindergarten to graduate school.
Special Programs
Several programs not necessarily part of every school's offerings are deserving of attention in the state system. The program for exceptional children -- gifted. retarded. and variously handicapped -- is reported as hampered by difficulties of several kinds. and should receive a just reappraisal.
Driver education is much discussed and well justified its place in the school program is at present in question.
Special programs for improving reading skills of poor readers at all grade levels are reemphasized here.
The possibility of extending the school program through the greater part of the year is increasingly suggested and deserves considered attention.
The improvement of teacher education is an integral part of the improvement of elementary and secondary schools.

GOVERNOR~S COMMISSION TO IMPROVE EDUCATION 100 MITCHELL STREET. S. Wo ATLANTA. GEORGIA
STAFF MEMORANDUM NO o 11 FIN A N C I N G G E 0 R G I A'S
E D U CAT ION A L S Y S T E M (PRELIMINARY DRAFT - SUBJECT TO REVISION)
NOVEMBER 11-12. 1963

FINANCING THE PUBLIC SCHOOLS

The specific need for more school money for the next 11 years has been presented by the State Superintendent of Schools in his recommendations to the GovernorGs Commission to Improve Education of September 6, 19630 The needs for additional funds were shown for four separate years in the period 1914-750 The total amount needed in each year was cumulative in the sense that it included the sum to continue the improvements recommended in the previous period
or periods. The recommended improvements require these
additional funds~

1964-65

1966-67

1970-71

1974-75

$29.164.737

$139t072~290 $199.884.205

These recommendations were drawn conservatively. It will be noted that the projected teacher salary increases will bring the base teacher salary to $5.700 by 1975. or $300 below the National Education Association goal of $6.000 base pay for 1970 0 These projections do not provide for the increase in funds which would be necessary if a new salary schedule with greater incentive for the higher certtTication levels were instituted at any period in the recommendations 0
The amounts needed for capital outlay in constructing 10.000 additional classrooms were based on 1962 costs of building classrooms. and these costs already have shown an increase. Additional sums to meet these higher costs would be needed each period for a total of almost $25.000.000 per year by 1974-75. Grants-in-aid for in-service training are scheduled for an increase of $325.000 per year in each period. over the present appropriations of $172.000. However. more recent recommendations would increase these additional sums for grants-inaid to a total of $577,800 by 1974-750
The original recommendations do not include additional funds for the school lunchroom program. Funds for employment of local system supervisors and incentive pay for school lunch managers would require an additional amount by 1974-75 of $1.050.000.
Another new recommendation would seek increases in the number of visiting teachers and curriculum directors at an additional cost by 1974-75 of $606.000.

7, Capital Outl~y:

1964 - 1965

2,950 Classroo~s (including backlog),

and Estimated needs for Auditoriums

and Gymnasiums, and Annual Allotment

(Est, Capitalized for 13 Yrs.)

7,048,000

Jncl~d~ng additional for 2,000

c~~~srooms by '66-67

Includir.g additional for 4,000

classrooms by'70-71

Jncluding additional for 4,000

c~assrooms by '7U.75

8. Educational ~elevision for Capital Outlay ?or Operation (includinE operation , of microwave)

297,625 475,000

1966 - 1967
9,7 40,000
297,625 1,175,000

1970 - 1971
15,125,000 297,625
1,175,000

1974 - 1975
20,510,000 297,625
1,175,000

9, Scho1arship~ for Prospective Teachers
10. G~~nts-In-Aid for In-Service Training
11. Vocational ~gucation To match new Federal FUfi~$ and to
provide for an expansion and
moderniza~~Qn of all programs

150 ,000 32-'.5 ;,"(").(..).(,)-
1,246,105

150,000 325,000
5,180,392

150 ,000 325,000
5,252,687

150,000 3 25,000
w
5,919,750

12. Vocational Repab~l.itation School for De~f Academy for ~lind

1,151,2 8 3 175,400 418,820

1,795,141 262,640 323,95 0

3,148,823
492,953 185,430

4,502,506 778,542 238,410

13. Textbook and Library Based on increases of 50 per child UD to $6.00 for textbooks and increases of $2.00 per teache~ yp to $30.00 (for library material)

803,7 04

2,459,152

4,879,572

6,607,572

State Department of ~ducat1on (Inc14ding normal tnQrem~nts, salaries of new ~mp1oyees maq~ n~Qessary by
reoFgani~ation study, and rental on add:!, tional data proGess:Lflg equipment) _~

365,000

400,000

450,000

500,000

~O~ALS

$29,164,737 $77,121,900 $139,072,290 $199,884,205

- 4-

These new recommendations would add $5,930 t lOO to the total additional funds needed in 1974-75, for a new total of $205,814,3050
Present 1962-63 total state revenue for public schools is $196,192,976 0 The additional funds recommended by the superintendent would bring the needed 1975 total state revenue for schools to over $401,407.000 0
Financial Needs Estimated on the Basis of Current Expenditure~Qil
It is estimated that if Georgia in 1975 should spend the 1962-63 United States average current expenditure per child of $432 (instead of the present Georgia $298), a total increase in revenue for public education in 1975 of $211,285,000 would be necessaryo It must be emphasized that this increase would bring Georgia current expenditures per child in 1975 only to the present United States avera~e. Estimates of current expenditures under assumptions of minimum quality by the National Education Association project the average United States per~child expenditure to $720 in 1969-70, or a 67% increase over the present United States average.
To make $720 available per child in Georgia for current expenditures in 1974-75, total school revenue from all sources would be approximately $855,690,000 0

1962 Total

1975 Total

Required

School Revenues School Revenues Increase

for Current

for Current

Over

Operations

Operations to 1962-63

Provide $432

per Child

in ADA

1975 Total Required

School

Increase

Revenues Over

for Current 1962-63

Operations

to Provide

$720 per

Child in

ADA

$267,558,406* $513,415,000 $2 45.857,000 $855,691.000 $588,133.000

* ($298 X 1962-63 ADA)

While it is almost impossible to accurately estimate total revenue available for schools in 1975. because of the many unknowns and variables. it is obvious that school revenue will continue to rise with the growth in personal income and gross output o
Personal income is expected to more than double between 1960 and 19760 Total school revenue for current operations in 1962-63. if doubled by 1975. would amount to $535,116,8120

Required Amount to Reach $432 Current Expenditure per Pupil in 1975
$513 , 415 , 000

Required Amount to Reach $720 Current Expenditure per
Pupil in 1975

1962-63 Total School Revenues for Current Operations Doubled
$535.116,812

In Memorandum No o 10, th~ proposed teacher index salary schedule was discussed. The following table indicates the cost of adopting this index. either with a $4.000 ~r $4,500 base salary for a teacher with a four-year certificate beginning the first year of teaChing.

...
Cost of Proposed Index Salary Schedule at Alternative Base Salaries 1964-65

For a base the required increase in

making the esti-

----_._- salary of -

MFPE is -

. . . .S.t.a.t e.

Local

mated teacher
_T..o.. tal salary -

$30,600,000 $5,400,000 $36,000,000 $5,637

50 ,505,513 8,912.737 59,418,250

6,268

The 1962-63 average United States teacher salary was
$ ~ 537. s: -$.5,?.3

- 6-

Base salaries through 1974-75. as proposed by Dr. Claude Purcell, are presented in the following table.

1964-65 1966-67
1970-71 1974-75

Increase per Teacher
$200 600 600 600

Proposed Base Salary
$3,900 4,500 5,100 5,700

The National Education Association's goal for beginning teachers with 4-year certificates is $6,000 by 1970. This is $900 more than the proposed 1970 beginning salary in Georgia.
The cost of financing the increases recommended in the preceding table are shown below o

To Reach Base Salary of:
$3,900 in 1964-65 4,500 in 1966-67 5,100 in 1970-71 5,700 in 1974-75 6,000 in 1974-75*
* 1970 NEA goal - estimated.

Increase
$10,459.800 32,579,400 57,099,000 84,018,600 97,567,400

A breakdown of the categories for which the pUblic school dollar is spent in Georgia and in the United States
is shown in the table on the following page. The patterns are quite different. Georgia spends a markedly higher
percentage of its public school dollar for direct instructional purposes and markedly less for administration, plant
operation, and fixed charges.

- - "(
COMPARISON OF WHERE THE PUBLU:C SCHOOL DOLLAR GOES

Of the $432 U. S.

Of the $298 Georgia

Average Current

Average Current

Expenditure

Expenditure

Per Pupil: -.(1962-1963 Estimate<.. ) -.Per Pupil:

% OF TOTAL CURRENT EXPENDITURE

Administration Instruction Plant ,operation Plant Maintenance Fixed Charges Other School
Services*

$ ~)O .. 30 289.87 37.58 13.82 33.26
37.15 $ 432.00**

4.7% 67.1
8.. 7 3.2 7.7
8.6 10Q.0%

% OF TOTAL CURRENT
EXPENDITURE

d-
'1-'

6.56

230.06

ll.9.G1

9.83

11.32

2.2% 77.2
6 )~ 3.3 3.8

21.16

7.1

$298.00** 100.0%

* In Georgia, this is called Pupil Transportation.
** May not add to totals because of roundings.

Source: U. S. Department of Health, Education and \Alelfare, Digest of Education Statistics, 1963, p. 48 and p. 52; and Georgia State Department of Education, Cost Per Child, April, 1963.

PUBLIC HIGHER EDUCATION NEEDS AND THEIR ESTIMATED COSTS
This summary of needs of the University System of Georgia is presented in two parts,; first, there is a brief discussion of priority program needs; and second, a projection of fInancial needs to support and develop the program o
Priority Program Needs
10 Instructional programs 'must be expanded to care for the raEld increase in enrollmentso Enrollment increase Is the fIrst and basic factor requirIng increased financial supporto Fali quarter enrollments are conservatively esti-
mated to increase from 39,931 in 1964-65 to 69,602 in 1973-14 0 Providing quality instruction for these citizens
who will be the leaders of tomorrow, has a priority claim on resources of the state o
2 0 , The 9ualit~ of the faculties,.!I1ust be strengthened through provisions or retainint the be..!~ faculty members we now have and attracting the est that can be obtained elsewhereo '!IRe quality of Tn'structfonjlresearcfi and service is directly linked to the quality of the professional staffo If higher education in Georgia 1s to move to a new plateau of excellence, it is mandatory that faculty sala-
ries be increased from its 1961-62 level, 15-1/2% below
the national average for comparable institutions, to a
point at least 25% above the national average o This will
place Gerogia in a competitive position nationwide o Salaries based on this level of support will allow institutions to hold their best faculty members and attract to the institutions brilliant scholars and teachers from the nation as a whole o
30 Libraries and other instructional resources for
use b~ faculty ancf*students= must be' ~reatl~ ex~anded and Stren~t'"henea0 As a requTrement&1ormprov ngI'gIier education; the provision of an adequate supply of high-quality learning resources ranks second only to the quality of the staffo Library holdings must be vastly expanded and their services strengthenedo Other instructional resources of more diversified types must be provided in more adequate amounts and at higher levels of qualityo
40 Strengthing tt;~~ra<!.~.~te programs is ~n ~s~ential re9uirement for imErovlng all levels of higher education and~ ilie imE.E2v!:.~~6r,,:,el<::~f~taiYand secoria~rLedu~ tiono ~he floodtrde growth ln enrollments at all levels of education ,is bringing unprecedented demands for faculty

= 9-
members. These demands can be met only by expanding the size of our graduate programs and improving their quality. The simultaneous increase in demand by government and industry for specialized personnel trained at the graduate levels ~akes expansion and i~provement of such programs even more mandatory.
5. Improvem~E~?Lt!:..s;.""gH8;,J.j;t.l.,9f_h~b$.t?'..Eeducation dunetevnedrSsituypons~tshtee~~!iB~21~:_,~E~,b!!K:l~'~:.~r:~1-,.2",.2f -iqE~,.t~_l~!_:1:~;t.i~ld.~yalndandefper~. mentation on an un~edented scale. Higher educat~on through its programs 61~='r'esearchm'conducts systematic studies of problems in most of the major areas of concern to man, yet tends to neglect a similar systematic study of itself and its own operations. Before real breakthroughs can be made in improving the quality of instruction and the efficiency and economy of higher education organization and management~ systematic and continuing programs of self-study and experimentation must be inaugurated. Conditions demanding such programs include: the vast field of new media made possible by technological advances such as television~ programmed learning, the language laboratory systems, the tape recorder$ multiple projection techniques, telephony~ and the like; learning theory and research which are producing new insights into the ways in which human beings learn; the expansion of knowledge, particularly in areas that cut across traditional subjectmatter fields; and the increasing number and complexity of higher education institutions and programs.
Meeting these priority needs will require financial support well beyond levels now prevailing. The next section presents an estimate of funds needed together with explanations and discussion,
Financial Sup.e0rl.Ji~~.!.or Higher Educat~on ~n ~eorg~
This discussion of financial needs for the support of higher education in Georgia is based primarily on the financial projections made by a special task force on finance. The task force report, Financial Program for Higher Education in Georgia, is in thet' form of a detailed projection of financial needs of the University System
for each of the ten years, 1964-65 - 1973-74, inclusive.
The Task Force on Finance is composed of the following members:

- 10 -
James Ao Blissit, Treasurer, University System of Georgia (Chairman)
O. Co Aderhold, President, University of Georgia
James Eo Boyd, President, West Georgia College
J. Wilson Comer, President, Abraham Baldwin Agric~ltural College
W. R. Knight, Director, Bureau of Business Research, Georgia State College
Harry B. O~RearJ President, Medical College of Georgia
Paul Weber, Dean, Georgia Institute of Technology
So Walter Martin, Vice Chancellor, University System of Georgia (Ex Officio)
To Wo Mahler, Associate Director, Governorws Commission to Improve Education (Ex Officio)
Characteristics of the Financial Projection
Basically, the estimate of financial needs is divided into two major parts~ first, the operating bUdget which estimates the funds needed to operate the institutions; and second, the capit~~ outlay budget which estimates the needs for new facilities, renoYation of existing facilities, and land acquisition. The estimate of funds needed for operation of the institutions is broken down in terms of the cost of resident instruction; organized research, extension, operation of Talmadge Hospital, and other activities; and student aid o After estimating total operating costs and capital construction costs, there is deducted estimates of internal income from all anticipated sources such as student fees; contracts, gifts and grants; sales and services; and the like. Deduction of estimated internal income from estimated cost produces the amount of money needed from state sources.
Amounts of Money Needed
Table I presents the estimated bUdget for the University System for the years 1964-65~ 1968-69 and 1973-74. Part A of the table shows the estimate of expenditures for

TABLE I ESTIMATED BUDGET FOR OPERATING UNIVERSITY SYSTEM
BY SELECTED YEARS
A. OPERATING BUDGET

Expenditures

1964 - 1965 1968 - 1)59 1973 - 1974

Resident Instruction Administration, General & Student Welfare
Plant Operations
Library Instruction and Research
Faculty Salaries Non-academic Salaries Operating Supplies and Expenses for:
Instruction Research Total Instruction and Research:

$ 6,637,260 6,321,200 2,844,560
27,257,3 00 2,067,800 1,751,925 529,200 31,606,225

$ 10,878,710 10,339,970 4,846,950
46,89 4 ,5 00 3,432,880
2,644,730 882,880
53,854,990

$ 16,934,030 16,052,050 7,937,820
77,622,000 5,425,840
3,760,685 1,389,550 88,198,075

Total Resident Instruction:
Organized Research, Extension, Talmadge Hospital and Other Activities
Student Aid TOTAL EXPENDITURES:
Income

47,.409,245 79,920,620 129,121,975

p

.f--J

26,4hO9O6,,000000

35,736,000 640,000

46,670,000 947,000

$74,3 05,2 45 $116,296,620 $176,73 8 ,975

Internal Income Resident Instruction - Student Fees and Other Sources Research, Extension, Talmadge Hospital and Other Activities
Total Internal Income:
State 'Appropriation Resident Instruction Research, Extension, Talmadge Hospital and Other Activities Student Aid
Total State Appropriation
TOTAL INCmm:

$11,244,245 12,95 2 ,000 24,196,245

$15,337,620 17,589,000 32,926,620

$19,3 66 ,975 24,013,000 43,379,975

36,1 65,000
13,5 44,000 400,000
$50,109,000 $74,305,245

64,583,000
18,147,000 640,000
$83,370,000 $116,296,620

109,755,000
22,657,000 947,000
$133,359,000 $176,738,975

B. CAPITAL OUTLAY BUDGET

1964 - 1965 1968 - 1969 1973 - 1974

Additional Facilities Academic Student Services
Total
Renovation of Existing Facilities
Authority Lease Rentals
Land Acquisition
TOTAL

$36,400,000 $15,215,000 $18,265,000

18,310,000

6,090,000

6,080,000

$5 4 ,710,000 $21,3 05,000 $24,3 45,000

2,000,000

1,443,000

1,700,000

4,585,000

4,225,000

3,840,000

....

I\)

1,000, 000

500 ,000

500,000

l

$62,295,000 $27,473,000 $30,385,000

Capital Outlay Requirements to be Financed from Student Income
State Appropriation from Capital Outlay

$ 9,155,000 $53,140,000

$ 3,045,000 $24,428,000

$ 3,040,000 $27,345,000

C. ALTERNATIVE STATE APPROPRIATIONS - ACCORDING TO METHOD OF FINANCING CAPITAL FACILITIES

1964 - 1965 1968 - 1969 1973- 1974

If additional facilities paid for out of income:

Operations Capital Outlay

$ 50,109,000 $ 83,370,000 $133,359,000

53,140,000 24,428,000

27,345,000

TOTAL

'$ +0 3.249,,000 $107,798,000 $160,704 ,000

w~

If authority financing used to provide

additional facilities:

Operations Capital Outlay

$ 50,109,000 $ 83,370,000 $133,359,000

10,319,000 13,479,000

19,523,000

TOTAL

$ 60,428,000 $ 96,849,000 $152,882,000

= 14 -
operating the University Systemo These costs are projected as around $74~000~OOO for 1964-65. $116~000jOOO for 1968-69 and around $177~000,000 for 1973-7~o After deducting internal income estimates~ the amount of funds needed from state appropriations is projected as around $50jOOO~000 for 1964-65~ $83~OOO~000 for 1968-69. and $133,000,000 for 1973-7qo
Part B of Table I presents the capital outlay estimates as around $52 9 000,000 for 1964-65~ $27~500,000
for 1968-69, and $30~0009000 for 1973-74 0 After deduct-
ing income from facilities providing revenue such as dormitories, the state appropriation for capital outlay is estimated as around $53jOOO~OOO for 1964-65, $24,500,000 for 1968-69 and $27~OOOjOOO for 1973-74 0
Part C of Table I presents two alternative estimates of state appropriations needed according to the method chosen for financing capital facilities o If capital facilities are provided out of the current bUdget~ the amount of funds needed from state appropriations per year will be much higher than if these facilities are financed through the building authorityo If authority financing is used. the total appropriation needed for both operations and capital outlay is estimated at $60,500,000 for 1964-65~ $97~OOO,OOO for 1968-69~ and $153,000,000 for 1973-7qo
Procedure Used to Make the Estimates
Estimates were made on a system-wide basis~ rather than by individual institutions, using as a guide actual experience from previous years~ operations and the 1963-65 budget requesto The procedures used in computing the estimates were patterned after budgeting procedures used by the State of Florida which were developed over many years through the cooperative efforts of the State Budget Director, the staff of the Board of Control, and the universities in the State University System of Florida o These procedures were somewhat simplified to prepare estimates for a ten-year period and were adapted to the differences in Georgia's system and requirements o The procedure used is outlined belowg
Programs of Resident Instruction
1 0 Convert fall enrollment estimates into equivalent full-time students on the basis of student quarter-hours of instruction needed at each of the three levels of

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instruction~ lower division, upper division, and graduate and professional"
2. Calculate the number of ~u}valent full-time teachers needed for instruction purposes on the basis of the following student/teacher ratios:
Lower Division - 24:1
Upper Division - l5~1
Graduate and Professional - 7.5:1
3. Calculate the :qu~~~nt full-time research posi-
tions needed on the basls of re~rch positIon for each teaching position needed at the graduate and professional levels. This is the same as assigning each graduate and professional position half-time to instruction and halftime to research.
4. Calculate ~~~l~,~-J[~ll~tim: counselfng r~~ tions needed on the basls 0 1 counsellng positl0n or each 14 teaching positions,
5. Calculate 1 e~u~le~~-time academic admin-
istrative ~~~!.on needed on the basis of f5 faculty
positIons.
6. Calculate total ac~d~~~.-20sitions needed by
adding results of 2 through ~, preceding.
7. Compute the ~ry !ev~l_~eeded at the third
quartile of salaries pald by comparable institutions if the U~ ~. salaries established at this level are increased at the rate of 5% per year, which is a sli~htly lnwp~ rate of increase than has been obtained nationally over the last five years Q The accompanying taole shows the actual salary computations used in this estimate.
8. To arrive at total funds needed for academic
salaries, multiply the average salary computed by the total number of academic positions needed.
9. Determine number of eguivalent full-time nonacademic positions needed on the5asis of 1 position for
each 3-1/2 academic position. Salaries for non-academic positions are based on annual increase of 4% from present levels.

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10. Instructional expense is computed on the following basis:

Lower Division - $ .75 per student quarter-hour

Upper Division - $ LOO "

"

""

- Graduate and
Professional

$ 2.00 II

"

""

11. Expenses for organized research are computed at the rate of $4.00 for each student quarter-hour at the graduate and professional level of instruction.

12. The total cost of instruction and research is
calculated by adding the sums of 8 through 11, preceding.

13. The funds needed for ~dministration general and student welfare expenditures are calculated on the basis
of 21% of the total cost of instruction and research for
the first year of the projection with slight reduction in the following years o The current percentage is 22.8%.

14. Plant operations and maintenance funds are calcu-
lated for the first year on the basis of 20% of the total
budget for instruction and research with a gradual reduction in the following yearso The current rate is 21.4%.

15. Library ex~enditures are based on 9% of the budget for instructl0n and research o The current rate is 9.2%.

16. The total operating budget for resident instruction is arrived at by adding the sums needed in items ~hrough 15, preceding.

170 The state aEpropri_~ion needed for operating Erograms of resident instruction is arrived at by subtracting from the total operaflngbudget estimates of internal
income from fees and other sources.

Programs of Research Extension, the Talmadge MemorIal Hospital, and Others
The programs under this heading include the Agricultural Experiment Stations, Agriculture Extension Services, the Center for Continuing Education, the Engineering Extension Division, the Talmadge Memorial Hospital, the Graduate Scholarship Program for Negro students, the Regional Educational program, and the activities of the Regents' office.

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The cost of personal services for professional staff members for these activities is based on an initial salary increase comparable to those of faculty members in the resident instruction program and uses the same
annual increment of 5%. Non-professional staff costs
are calculated on the same basis as non-professional employees in the resident instruction program. Provision is also made for additional personnel to care for the normal development of these programs. Operating supplies and expenses are based on anticipated expansion plus a slight adjustment for expected price increases. The substantial amounts of internal income derived from these programs are estimated and then deducted from the operating costs to arrive at the state appropriation needed.
Student Aid
This program was authorized by a constitutional amendment to provide scholarships for Georgians with intellectual ability who lack the financial resources needed to obtain a college education. To inaugurate this program $100,000 was provided by the Legislature, which has not been increased. It is proposed that an initial amount of $10 per student be provided for this purpose and that this amount be adjusted each year to care for expected increases in the cost of attending college.
Total Operating Budget
The total operating budget is derived by adding together the costs for resident instruction; research, extension, and other activitIes; and student aid. Deduction of total internal income provides the estimate of total state appropriations needed for operating the University System.
Capital Outlay
Capital outlay costs are based on anticipated increases in enrollment. Needs for student housing, academic facilities, and land acquisitions are based on prior experience as related to existing facilities and anticipated enrollment increases.
This estimate of additional academic facilities is based on an initial $4700 per additional student enrolled above present capacities and this amount is adjusted over the ten-year period to care for anticipated increases in construction costs.

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Student service facilities in previous years have been constructed under authority financing and amortized by using income from both the new and existing facilities. The financial leeway provided by this plan is now exhausted. To prevent increasing rental charges to students to a level that will jeopardize their educational 9pportunity, these estimates propose financing one-half of such facilities from state funds and one-half from rental charges to students.
The cost of renovation of existing facilities is based on 10% of the cost of new academic facilities.
The amount for authority lease rentals is based on rental requirements for bonds previously issued.
The amount for land acquisition is based on present estimates of needs to expand campuses to care for anticipated enrollments and related constructiono
Total State Appropriation The total state appropriation needed is calculated on two alternatives -- one, financing capital construction needs out of current income and two, financing capital construction needs through the Building Authority.
Alternative Levels of Financial Support
The estimates of needed financial support thus far presented represent the thinking of a group of professional leaders in the University System who for the most part are faced daily with the problems of financing and operating programs of higher education. This is their calculation of real costs if Georgia is to have the public higher education program it needs.
These costs are high, admittedly, and it is not within the power of the officials and faculties of the University System to provide the needed funds. This can only be done by the people of Georgia as they express themselves through their elected officials and representatives in the executive and legislative departments of state government. It is possible that the people will not be ready to support higher education at this proposed level.
For this reason, three levels of support are presented as alternatives. These are summarized on Table II in terms of the amount of state appropriations required for each

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level. The differences between the three levels in cost to the state is shown in terms of amount and percentage,

All three levels are based on the same procedures

outlined in a preceding section of this m~morandum.

Enrollments, numbers of facult~ and non-faculty personnel

needed, capital outlay needed, and all other factors

related to enrollments are calculated as constant,for

all three levels. The differences between the three

levels are calculated by the use of three different

bases for arriving at salary levels of professional and

non-professional personnel and all other costs that are

related to staff costs, namely; administration p general,

and student welfare expenditures; plant operations; and

maintenance and library expenditures.

'

Level I is an estimate of state funds needed ,to carryon the program of the University System at present level.s of operations, but, adjusts salaries to the national
average of increase for the past .five years. Thus salaries
will remain at the same competitive levels nationally as at present. Level I will prevent falling behind any further.

Level II is an estimate of state funds needed to support the program at the level of the national mean or average for comparable institutions and to maintain this position over the ten-year period.

Level III is the estimate of funds presented in the
preceding section and provides support at ~pproximately the third quartile of comparable institutions. This is the level of support recommended by the Task Force on Finance.

As can be seen, the difference in cost to the state between Levels I and III is $6,840,000 or a percentage difference of 12.8%. For 1973-74, the difference in amount is $10,944,000 and the difference in percent is
7.7%.

Additional Comments About the FlnanciaI-Estfiilates
Staff and consultant study of the financial estimates made by the Task Force on Finance resulted in the following comments:

~ 20 =
1 0 The general approach to financial planning on a long-range basis is highly commended and is in line with some of the best practices now being used throughout the countryo
2 0 The student/teacher ratio recommended for graduate and professional programs at the rate of 705~1 is too high for the numerous relatively new advanced graduate programs now being offered o Until the numbers enrolled in these programs are greatly increased and the numbers of faculty members increased j the recommended ratio will impose too heavy a load c
30 Continuation of the present rate for library
expenditure is considered inadequate particularly for graduate level programs and research programso It is believed that a "crase" program is needed to improve libraries at graduate institutions in particular i and probably at all institutions o
40 The sizable increase in funds proposed for the
first two years is considered too rapid for efficient and effective use of the increased funds 0 It is recommended that the rate of increase be spread more evenly over the first four years rather than the first two o
A Concluding Comment
Results of projections and estimates particularly of finances, tend to alarm both those who make them and those who consider themo The first reaction tends toward a feeling that "this cannot be realistic"o Recent historYt however. tends to demonstrate that most estimates are too conservative and that the reality exceeds the estimates o
As a case in point~ a Georgia study was made in 1952 to estimate funds needed for the ten-year period July l~" 1953 through June 30~ 19630 The actual enrollment for this period exceeded the estimates made in 1952 by approximately
10% and the actual state appropriation for higher education
at the end of the period exceeded the estimated "needs fl by
about 40%0 Despite this~ Georgia in 1963 lags far behind
the national averages in both college enrollments and appropriations 0 These facts suggest that the enrollment and financial projections used in this study may be equally conservative o