Report to the Board of Regents of the University System of Georgia [1932]

1-
REPORT
to the
Board of Regents
of the
University System of Georgia

By

L. D. COFFMAN
c. EDWARD ELLIOTT
CHARLES H. J UDD
GEoRGE F. ZooK

and

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CEoncE A. WonKs

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Chapter

Page

I. Introduction ---------------------------------------------------------- 1 Transition to a University________________________________ 2

Reorganization ------------------------------------------ __________ 7 Survey of the System________________________________________ 9

Guiding Principles______________________________________________ 12

II. The Board of Regents and Its Executive
Organization ---------------------------------------------------------- 15 The ChancellorshiP---------------------------------------------- 18 University Committees ------------.------------------------ 22 University Councils ________________________________ __________ 22

III. Members of the University System_______________ ____ 25
Secondary Schools -------------------------------------------- 25 Junior Colleges ------------------------------------------------ 25 Four-Year Colleges which Should Be
Discontinued ____ ____ ____ _______ ___ _____________ _____________ ____ 31 Preparation of Teachers __________________________________ 40
Schools for Negroes ------------------------------------------ 42. Medical School -------------------------------------------------- 47 Library School __ ______ ______ __________________ __ __ ______ ________ 50
Veterinary Medicine ------------------------------------------ 50 Forestry ____________________ --------------------- __ ___ ____ ________ ______ 51
Private Institutions -------------------------------------------- 51 Proposed Units of the University System______ 52

IV. Allocation of Functions to Institutions____________ 53
Engineering Education ------------------------------------ 54 Mining Engineering ------------------------------------------ 54 Chemical and Metallurgical Engineering______ 56 Engineering at the University ________________________ 57
Agricultural Engineering -------------------------------- 58 Engineering at the School of Technology________ 59
Business Education -------------------------------------------- 6-2 Business Education at the University of
Georgia and the School of Technology________ 63

CONTEK.TS

Chapter

Page

Work m Commerce at The Georgia State College for Women___________________________________:____ 70

Business Education for Negroes______________________ 71

Veterinary Medicine ------------------------------------------ 7'2
Agricultural Education ------------------------------------ 7-! Home Economics Education ____________________________ 79

Preparation of Teachers ------------------------------------ 8-!. Negro Institutions ---------------------------------------------- 87 Summary ------------------------------------------------------------ 87 Suggested Co-operation ---------------------------------- 88 Junior-College Curricula ---------------------------------- 89 Adult Education ------------------------------------------------ 9;) Forestry Education ------------------------------------------ 96

V. Miscellaneous Problems ---------------------------------------- 100 Nepotism -------------------------------------------------------------- 100 Summer Schools ___________________ ---------------------------- 100 Possibilities for Strengthening ________________________ 101
Publicity -------------------------------------------------------------- 103 Inbreeding in the Faculties ------------------------------ 10-! Administration of Student Personnel ____________ 106
Retirement Provisions -------------------------------------- 108 Income from Housing and Dining Facilities.. 109 Athletic Organization -----------.----------------------------- 110

Appendix

APPENDIXES

A. Class Size, Fall Term, 193:2__________________________________ 110

B. Number Public-School Teachers Employed, Number Included in This Study, and Estimated Number New Teachers Reeded Annually ---------------------------------------------------------------- 111
C. Training: of -White Elementary and HighSchool Teachers in Georgia __________________________________ 111

CHAPTER. I
INTRODUCTION
Georgia was the first of the states to make legal provision for the establishment of a state university, although the University of North Carolina was the first to actually begin instruction. In 1784, the Legislature of Georgia set aside forty thousand acres of land in trust for the endowment of a'' college or seminary of learning.'' In the development of this idea, the influence of Yale wa.s conspicuous. Lyman Hall, a Yale alumnus, was the Governor of Georgia at the time. An address of his delivered before the Legislature resulted in the action indicated. He, in turn, was undoubtedly indebted to Abraham Baldwin, a friend of his and another alumnus of Yale, for many of the ideas incorporated in the legislation.
For a period of sixteen years following the passage of the Act of 1784, little of a constructive character was done except for the granting in 1785 of a charter to a group of persons, of which Mr. Baldwin was a member, for the establishment of the University of Georgia. This Act required that all schools supported by public funds should be a part of the University. Mr. Baldwin was elected the first president of the University, but until the adoption of the constitution in 1798 there was a period of inactivity. This constitution called upon the Legislature to establish the University.
In 1801, Governor John Milledge gave the trustees a tract of land as a site for the institution. A portion.. of this land is incorporated in the present campus of the University of Georgia. The forty thousand acres of land that had been set aside for the University was wild land
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and was the source of very little income, as there was an abundance of such land in Georgia.
In the meantime, Abraham Baldwin had been elected to the United States Senate, and a third alumnus of Yale, who appeared on the scene, played an important role. This individual was Josiah Meigs, who was elected president, a position he held until 1811. During the period of Josiah Meigs' presidency, the only assistance given by the state, aside from the wild land previously mentioned, was an appropriation of five thousand dollar.s by the Legislature in 1802. In spite of these financial handicaps, President Meigs established F'ranklin College -the original name of the University which is preserved in the name of the present college of liberal arts-and graduated upward of fifty students.
Transition to a University
F'ranklin College did not begin to take on the characteristics of a university until after the war between the states. The first professional school was then established. In 1867, the Lumpkin Law School, a private institution established in 1859, was made a part of the University. The Legislature accepted the conditions of the Morrill Act in 1866, and in 1872 the funds were transferred to the trustees of the University. On May 1, 1872, the "Georgia State College of Agriculture and Mechanic Arts" was established at Athens as a school of the Univer:sity. In this same year, the North Georgia Agricultural College at Dahlonega was made a branch of the University, and two thousand dollars a year from the Morrill F'und was added to the budget of that institution. This sum is .still paid annually to the college at Dahlonega. This arrangement represented not only an extension of the use of the Morrill Fund but an institu-
2

tion not located in Athens was recognized as a part of the University of Georgia. This ~arne year, the recog-nition of this second principle is found again in the acceptance of the State Medical College (established in 1829 and located in Augusta) as the medical department of the University.
The constitution of Georgia, which was established in 1877, provided that the appropriations for education aside from those made for ''the elementary branches of an English education" should be made to the University. In consequence of this provision, the following institutions were established as branches of the University:
School of Technology, Atlanta, 1885 Georgia Normal and Industrial College for Girls, Milledgeville, 1889 (now The Georgia State College for Women)
Georgia State Industrial College for Colored Youths, Savannah, 1890 (now Georgia Industrial & Normal College)
State Normal School, Athens, 1895 (Later it became the State Teachers College, and during the academic year 1932-33 was merged with the College of Education of the University.)
South Georgia Normal School, Valdosta, 1906 (now Georgia State Woman's College)
In 1906, the Legislature also made provision for the establishment of district agricultural and mechanic arts S'Chools-one for each congressional district. Originally these schools were under the general supervision of the College of Agriculture, although each had its own Board. The institutions and their locations follow:
1st District A. & M. School, Statesboro (now South Georgia Teachers College)
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2nd District A. & M. SchoQ}, Tifton (now Georgia State College for Men)
3rd District A. & M. School, Americus (now State Agricultural and Normal College)
4th District A. & M. School, Carrollton 5th District A. & M. School, Monroe (now Georgia Vocational and Trade School) 6th District A. & M. School, Barnesville (now Georgia Industrial College) 7th District A. & M. School, Powder Springs 8th District A. & M. School, Madison 9th District A. & M. School, Clarkesville lOth District A. & M. School, Granite Hill (now out of existence) 11th District A. & M. School, Douglas (now South Georgia State College) 12th District A. & M. School, Cochran (now Middle Georgia College)
As these schools were branches of the College of Agriculture, they were branches of the University.
With the development of the public school system, especially of high schools and the introduction of agriculture and home economics into their curricula, the need for the district schools disappeared. Those responsible for them, in many instances, recognized this fact and sought to get them changed to institutions of a different type. As a result of the.se efforts, the school at Statesboro was changed in 1924 to the Georgia Normal School (known since 192,9 as South Georgia Teachers College). As indicated below, the school at Tifton became the South Georgia Agricultural and Mechanical College in 1924 (now known as Georgia State College for Men).
Georgia Agricultural, Industrial and Normal School (Colored), Albany, became a branch of the University
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in 1917. (This institution had opened in the fall of 1903 as a private institution under th~ name of the Albany Bible and Manual Training Institute. The Reorganization Act calls it Georgia Industrial & Normal College.)
The Bowdon State Normal & Industrial College, Bowdon, was taken over by the state in 1919. (This institution was established by Charles A. McDaniel in 1855. In 1857, it was chartered as the Bowdon Collegiate Institute. Later it was given the name of Bowdon College, which name it retained until it became a branch of the University in 1919.)
The School of Agriculture and Mechanical Arts (Colored), Forsyth, became a branch of the University in 1922. (This institution was established in 1902 as the Forsyth Normal and Industrial School. In 1931, the name was changed to The State Teachers and Agricultural College. The Reorganization Act calls it the School of Agriculture & Mechanical Arts.)
South Georgia Agricultural and Mechanical College, Tifton, became a college in 1924 (now known as Georgia State College for Men).
When Federal funds became available for research in agriculture, Georgia was one of the very few states that established its agricultural experiment station independent of its College of Agriculture. This station was established in 1886 and located near Griffin. From the beginning, it had its own governing board and its only connection with the University was through two provisions in the legislation establishing the station:
1. A member of the faculty of the College of Agriculture was to be on the governing board.
2. The Chancellor of the University was ex officio a member of the governing board of the station.
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This station is known as the Georgia Experiment Station. In 1918, the Georgia Coa~al Plains Experiment Station was established at Tifton. This station had its own governing board and had complete independence of the Georgia Experiment Station.
The foregoing is an epitome of the development of the University of Georgia prior to the action of the Legislature in 1931, except for the developments that had taken place at Athens. Originally this institution was known as Franklin College but, as has been indicated, law, medicine, and agriculture were added at a relatively early period. Further development took place through the establishment of the School of Pharmacy in 1903, the School of Forestry (now a department) in 1906, the School of Education in 1908, the School of Commerce in 1912, the School of Journalism in 1921, and the Division of University Extension in 1914.
Although the above institutions, except the experiment stations, were branches of the University of Georgia, each had its own president, or other executive officer, and each had its own board of trustees. Appropriations were made to the University but in the name of each institution; the result was that the Legislature was subjected at each ses.sion to the pressure from local sources for the expansion and development of each institutionnot in terms of the needs of the state and with a view to the welfare of the entire state but in the light of local interests and the ambitions of each president for the institution for which he was responsible. The consequences have been unfortunate; the state has been given too many institutions with little or no co-ordination of effort. With its relatively limited resources, Georgia is not in a position to adequately finance such a large number of institutions. Many of them had been so loo.sely
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run that they were badly involved in debt. The aggregate indebtedness of the institutions on.July 1, 1932, was over one million dollars. This was due in part to the failure of the state to pay the 1928-30 appropriations.
Reorganization
The foregoing picture was changed when, under the leadership of Governor Richard B. Russell, Jr., the Legislature of the state of Georgia passed an Act designed "To simplify the operations of the Executive Branch of the State Government by abolishing certain offices, boards, departments, commissions and institutions; creating others; redistributing the powers, duties and functions of said Executive Branch among such officers, boards, commissions and departments as are herein created or hereby retained; defining such powers, duties and functions and coordinating the same... " The legislation was signed by Governor Russell on August 28, 1931. It became effective January 1, 1932.
Section 45 of the Act provides for a "department of the State Government of Georgia, to be known as the 'Board of Regents of the University System of Georgia.' '' Section 50 provides for a membership of twelve on the Board-one member from each congressional district, one at large, and in addition the Governor, who serves as an ex officio member. The appointive members are chosen by the Governor subject to confirmation by the Senate. The term of office is six years.
The Act transferred to the Board of Regents the responsibility for the following institutions:
School of Technology, Atlanta College of Agriculture, Athens State Teachers College, Athens University of Georgia, Athens
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South Georgia Teachers ColL_ege, Statesboro Georgia State College for Men, Tifton State .Agricultural and Normal College, .Americus 4th District .A. & M. School, Carrollton Georgia Vocational and Trade School, Monroe Georgia Industrial College, Barnesville 7th District .A. & M. School, Powder Springs 8th District .A. & M. School, Madison 9th District .A. & M. School, Clarkesville lOth District .A. & M. School, Granite Hill 1 South Georgia State College, Douglas Middle Georgia College, Cochran Bowdon State Normal & Industrial College, Bowdon Georgia State Woman's College, Valdosta State Medical College, .Augusta North Georgia College, Dahlonega School of .Agriculture & Mechanical .Arts, Forsyth 2 Georgia Industrial & Normal College, .Albany 3 Georgia Industrial & Normal College, Savannah Georgia Experiment Station, Griffin Coastal Plains Experiment Station, Tifton The Georgia State College for Women, Milledgeville Previous to the passage of this .Act each institution had its own governing board, directly responsible to the state, which appeared before the successive sessions of the Legislature for funds for the institution in its charge. The new legislation displaced the existing boards and put the responsibility for all of the institutions in the hands of the Board of Regents.
1 This school ceased to exist with the close of the academic year 1931-32. 2 The name School of Agriculture & Mechanical Arts was used in the Reorganization Act although the Legislature had changed it to The State Teachers and Agricultural College. 3 The name Georgia Industrial & Normal College was used in the Reorganization Act although the Legislature had changed i:. to the Georgia Normal and Agricultural College.
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Survey of the System
In the discharge of its respon~ibilities, the Board of Regents appointed Charles M. Snelling Chancellor of the University System and established the office in Atlanta independent of any of the branches of the University. Dr. Snelling felt the need for an assessment of the educational resources of Georgia by a group from outside the state. Through the generosity of the General Education Board, he had placed at his disposal funds for the purpose of making a study of the University System.
The Survey Committee as originally constituted had the following membership:
Edward C. Elliott, President of Purdue University Henry Suzzallo, President of the Carnegie Foundation for the Advancement of Teaching George F. Zook, President of the University of Akron George A. Works, Chairman, Professor of Higher Education, University of Chicago Developments made it impossible for Dr. Suzzallo to serve.
L. D. Coffman, President of the University of Minnesota, and
Charles H. Judd, Dean of the School of Education, University of Chicago, were added to the Committee.
In the discharge of its duties, the Survey Committee had the services of the following specialists:
Agriculture, Agricultural Extension, and Experiment Stations: Thomas P. Cooper, Dean of the College of Agriculture, University of Kentucky
Buildings: Ray L. Hamon, Department of Education, George Peabody College for Teachers
Commerce: William H. Spencer, Dean of the School
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of Commerce and Administration,. University of Chicago Engineering: H. P. Hammond, Director, Society for
the Promotion of Engineering Education
Extension: Chester D. Snell, Dean of the University Extension Division, University of Wisconsin
Forestry: Henry Solon Graves, Dean of the School of Forestry, Yale University
High Schools: W. F. Lusk, Carriere, Mississippi Home Economics : Miss Jessie Harris, Head, School of Home Economics, University of Tennessee Junior College: Doak S. Campbell, Division of Surveys and Field Studies, George Peabody College for Teachers Liberal Arts Curriculum of the Senior College: Fred J. Kelly, Chief, Division of Colleges and Professional Schools, United States Office of Education Medicine : Dr. William H. Howell, Chairman, National Research Council Preparation of Teachers: Charles H. Judd, Dean of the School of Education, University of Chicago, and Doak S. Ca~pbell, George Peabody College for Teachers Registrars' Offices: Ezra Gillis, Registrar, University of Kentucky Student Personnel: A. J. Brumbaugh, Dean of Students in the College, University of Chicago Veterinary Science: C. H. Stange, Dean of the Division of Veterinary Medicine, Iowa State College of Agriculture and Mechanic Arts Each specialist filed a written report with the Survey Committee. The aggregate volume of these reports is too great to permit their publication in full. Instead, they have been drawn upon in the preparation of this report. In one or two instances, the Committee did not find itself in agreement with the specialist regarding
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major issues. The most notable case occurred in connection with the State Medical College. In these cases, the difference in views has been frankly stated. On minor points, no attempt has been made to reconcile the differences that exist between the Committee and its specialists. They are of slight importance, and the Chancellor of the University System in his study of the questions involved will be in a position to determine the relative merits of the suggestions offered. Five copies of each report (only one copy of Mr. Hamon's) by the specialists have been filed with the Board of Regents.
The field work began in May, 1932, and was continued, except for an interruption during the summer, to the middle of February, 1933. The demands made on the staffs of the institutions in connection with this visitation and incidental to the collection of the data have of necessity been heavy. The members of the Committee and of the staff of .specialists have received full co-operation throughout the study.
Especial mention should be made of the assistance given by Chancellor Snelling. He has been much interested in the work of the Committee and has given freely of his time and energy to the work.
Valuable assistance was rendered by two members of the office of the State Superintendent of Schools. Gordon G. Singleton assisted in the study of teacher supply and J. C. Dixon aided in collecting the data regarding the state-supported institutions for Negroes.
In the office of the Chairman of the Committee, Mary Bryan Gore has carried the burden of the details involved in the assembling of the data; this has been an exacting task.
The brief summary that has been presented in the introductory statement makes it clear that the Univer-
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sity System of Georgia preseJil.ts a large number of intricate problems. In its assessment of this complex situation, the Survey Committee has been guided by certain principles which should be borne in mind in considering the recommendations made in this report. The main principles are given below.
Gttiding Principles
1. A state's program of higher education should be developed with the idea of rendering the maximum degree of service to its citizenship. No state university worthy of the name should hold itself aloof from the life of the people who make possible its existence. This view has been cogently stated by President Coffman in a recent report in which the university's responsibilities are discussed: ''One is to provide competent and adequate training in all those fields whose problems are basic to the welf.a.I'e of a democratic society; and the other is to utilize its scientific resources to the utmost to create better living conditions and to create new wealth.'' 1
2. The Board of Regents of the University System are charged with the responsibility of developing a system of higher education adequate for the needs of Georgia. This is an undertaking demanding wisdom and calling for an insight into the conditions of the future as well as those of the present moment. The ideal to be striven for should be clearly envisaged. A hand-to-mouth policy will not give the people of the state the largest return on their investment in higher education. The state has a right to look to the Regents for a constructive,
1 L. D. Coffman, Understanding the University, University of Minnesota, November, 1932, p. 7.
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. forward. -looking, and well-integrated program of higher
education. 3. This country has undertaken a great experiment
in its attempt to develop higher education at public expense. The magnitude of the undertaking was but little realized when it was begun, and the results are in some respects still uncertain. A variety of procedures has been used in attacking the problems involved in this venture. As a consequence, a considerable body of experience has been accumulated. The results of these experiences and the trends that are becoming more evident with the passing of time have been drawn upon in the recommendations that are made in this report.
4. The state of Georgia's program of higher education bears earmarks indicating that at times the ambitions of communities have superseded the broader interests of the state. The Survey Committee throughout its study of the questions involved has endeavored to look at the situation from the viewpoint of the state as a whole. Unless those who are responsible for voting the funds and those who are responsible for the expenditure of these funds are able to rise above local issues and look into the future with an eye single to the needs of the state as a whole, Georgia cannot hope for a program of higher education adequate for such a great state. The potentialities are great, but they will be fully realized only if they are unselfishly developed.
5. The reorganization of Georgia's system of higher educ.ation cannot be adequately effected without bringing hardship into the lives of many individuals. In some instances, these persons will be among those who have given freely of their lives for the welfare of institutions that are now a part of the University System. No one
will gainsay that these hardships should be reduced to
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the minimum, but they should JX>t be allowed to prevent the necessary changes from being effected. The Survey Committee has made its recommendations regardless of personalities involved. It properly leaves to the Board of Regents and the Chancellor the responsibility of determining when these changes may be wisely brought about and the means which may be used to effect them so as to reduce to a minimum the personal hardships that are certain to accompany their realization.
6. Recommendations have not been limited to those changes that are immediately practicable. The Committee has endeavored to look into the future and to indicate, at least, the goals toward which the University System .should move. Years will be required for the complete realization of the suggested program.
7. The relation of privately supported higher education to the University System of Georgia arose several times during the progress of this study. Illustrations are furnished by the preparation of teachers, both white and colored; the training of physicians and librarians; and the program of adult education of the state. The Survey Committee has taken cognizance of the presence of the privately supported institutions, and it believes the Board of Regents in the development of the University System should avoid unnecessary duplication of specialized forms of education for which the need is limited.
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CHAPTER II ...
THE BoARD OF REGENTS AND ITS
EXECUTIVE ORGANIZATION
The legislative Act providing for the abolition of the separate boards of the several institutions and substituting therefor the Board of Regents of the University System fixed the membership at one representative from each congressional district and one appointed at large, with the Governor as an ex officio member, thus making a total membership of twelve. The term of office is fixed in Section 51 as follows:
''One shall be appointed for a term concurrent with that of the Governor, provided he shall hold said office at the pleasure of the Governor and be subject to removal by him; two shall be appointed for a term ending July 1, 1933; four shall be appointed for a term ending July L 1935; and four shall be appointed for a term ending July 1, 1937; and thereafter their successors shall be appointed for a term of six years, except as to the one member to be appointed who holds his office for a term concurrent with that of the Governor.''
This legislation has, in the opinion of the Survey Committee, three possible weaknesses which should be guarded against :
1. vVith the exception of the Governor and the regent appointed at large, each member is the representative of a definite area-the congressional district. There is always the danger that these members will be regarded a.s representatives of given sections by the persons resident in the district from which they come, whereas, they should be the representatives of the interest of higher education for the state as a whole. They should
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be without institutional and regional bias, and they should be representatives of the main economic and cultural interests of the state. The Survey Committee recommends that all regents be appointed from the state at large.
2. Under the present provisions regarding the length of periods of appointment, normal changes may make it possible for a Governor to appoint as many as nine members of the Board of Regents. The Board, while appointed by the Governor, should not be .subject to as rapid changes in personnel as may occur under the present legislation. The Survey Committee recommends a change to a membership of either ten or twelve regents appointed by the Governor, with terms of either ten or twelve years, one term to expire each year.
3. The Survey Committee recommends that the Governor should not be an ex officio member of the Board of Regents. The National Association of State Universities recently approved a report in which this question was discussed as follows:
''The custom of having ex officio members of Board of Trustees or R.egents fortunately has not prevailed very widely. The theory is thoroughly unsound, the practice is even worse. In the first place, these people are irregular in their attendance and always limited in their information. In the second place, any conscientious man in such a position would recognize his limitations and be embarrassed by attempting leadership. Acquaintance with the important policies of a modern state university requires years of experience and definite application to their study. This is fundamentally why members of such Boards should have a long tenure of office. In the third place, an ex officio
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member is subject to the change of political motives and of having a status somewhat different from the status of a regularly appointed or elected Trustee. It is not good administration to have two different classes of memberships in a Board dealing with a permanent institution and especially so when these ex officio members are temporary in their relation.' n
The legislation establishing the Board of Regents placed two restrictions on this body which will prevent it from rendering its greatest service to the state. They were:
1. No institution can be discontinued without approval of the Legislature.
2. Appropriations are to be made to individual institutions and not to the Board for the entire system.
The Survey Committee recommends that both of these restrictions be abrogated and that the Board of Regents be given the power to determine what institutions should be continued and to allocate the appropriations made to the Board for the support of the University System.2
It is not only important that the Board of Regents should have a stable organization, consisting of representative citizens with adequate powers who are willing to give of their time and energy in behalf of the state's interest in higher education, but the Board should also have .such a staff as may be necessary to furnish it with facts, regarding both the educational and financial aspects of the University System, as may be needed in determining policies. Furthermore, the Board must have provision for the execution of the policies it decides are
WISe.
1 Report of Committee on University Control, 1932. :! These powers have been conferred on the Board of Regents since the Survey Committee began its work.
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The Chancdtotship
It may be stated without reservation that the ultimate success of the University System will be determined in a large degree by a proper functioning of the office of the Chancellor. The Board of Regents exercises legal powers. The Chancellor wields influences that are as much personal as they are official and professional. Such influences are the vital essence of the leadership of an educational system constructed and operated for human values. This office should personify wisdom in the art of administering material things and, beyond this, should furnish an inspiring leadership for the realization of the spiritual values without which the University System cannot make its greatest contribution to the political, economic, and cultural life of the state. Therefore, the recognized place and responsibility of the Chancellor in the University organization is of pre-eminent importance, particularly during the initial stage in the development of new policies, for the administrative direction of the state's activities in higher education.
From now on, the chief concern of the Board of Regents should be that of providing for such an organization of the Chancellor's office as will make of it not only an effective agency for the right government of the University System but also, and what is of much greater importance, a center of stimulation for the development of the spirit of service and achievement in each institution of the University System and, consequently, in the System as a whole.
For the attainment of these ends, the Chancellor should be designated and regarded as the chief executive offic.er of the Board of Regents. The present by-laws of the Board of Regents designate the Chairman of the
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Board of Regents as the chief executive officer of the
University System (Section 18). ft is true that, in the
main, the official actions of the Board, since the creation of the office of Chancellor, clearly display a distinct
tendency to delegate to the Chancellor those responsi-
bilities without which he may not successfully perform his duties; nevertheless, the implications of Section 18 are not consistent with a policy of fixing executive responsibility upon the Chancellor.
In this connection, consideration should be given to a clear definition of the relations of the Secretary-
Treasurer to the Chancellor. Such a consideration should
result in a more effective distribution of the duties of the Secretary-Treasurer, as these inevitably involve the work of the Chancellor's office.
As a result of its study of the conditions in Georgia and of the philosophy it holds with reference to university administration, the Survey Committee makes the following recommendations regarding the office of the Chancellor:
1. Relation of the Chancellor to the Board of Regents: The Chancellor should be the chief executive officer of the University System and, as such, should perform all of those duties that are prescribed by the Board of R.egents. He should be responsible to the Board of Regents for the prompt and effective execution of all of the rules and regulations adopted by the Board for the ordering of the entire University System and for the government of any and all of its branches.
The Chancellor should have the right and it should be his duty to attend and to participate in (without the privilege of voting) all of the meetings of the Board of Regents and of its committees. He should make all nominations and recommendations for appointments,
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promotions, salaries, transfers~ suspensions, dismissals, and all recommendations for the appointment of administrative officers, members of instructional and scientific staffs, and all other employees of the several institutions and services of the University System.
2. Relation of the Chancellor to the University System: The Chancellor should be a member of all faculties and other academic bodies having legislative authority within the University System. He should decide all questions of jurisdiction, not otherwise specifically defined, of the several councils, faculties, and officers. He should have the right to refer any question of institutional concern or of University System policy to any council, faculty, committee, or member of the instructional, scientific, extension, or administrative staffs for investigation and report. He should have the right to call meetings of any council, faculty, or committee at any time.
The Chancellor should afford every reasonable opportunity, consistent with sound administration and educational policy, to every officer and to every member of the staffs of the several institutions belonging to the University System to present suggestions and recommendations designed to promote the general welfare of the University System or of any of its institutions and activities.
3. Veto Power of the Chancellor: The Chancellor should have the power to veto any act of any council, faculty, or committee within the University System, but in so doing he should transmit to the proper officer a written statement of the reason for such veto. A copy of each veto statement should be transmitted to the Board of Regents. Any council, faculty, or committee should have the right to appeal from a veto of
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the Chancellor to the Board of Reg-ents and to be represented before the Board by any._member or members chosen for that purpose from said council, faculty, or committee.
4. Reports and Budg-ets : The Chancellor should prepare and submit to the Board of Reg-ents such annual and special reports concerning- the University System as the Board may require. He should also be responsible for the preparation and presentation to the Board of Reg-ents of the annual budg-et of the University System and such other financial reports as may be necessa.ry.
5. Incidental Powers of the Chancellor: As the chief officer of the University System, the Chancellor should be especially charged with the duty of securing- harmony and co-operation among- all of the institutions belong-ingto the University System and of effecting- the economical co-ordination of all of their activities. To these ends he should have such powers as may be definitely deleg-ated to him b.y the Board of Reg-ents and, in addition, such incidental powers as are necessary, for him to perform promptly and effectively the duties of his office.
At an early date there should be added to the staff of the Chancellor's office an individual to be desig-nated as Executive Secretary. This officer, properly trained in educational and .statistical techniques, should be charg-ed, under the supervision of the Chancellor, with the necessary duty of assembling-, analyzing-, and interpreting the reg-ular and special reports of the operations of the several branches of the University System .so as to make co11tinually available in proper form for the Board of Regents that g-eneral information and other specific data upon which the Board may base its actions. F'urthermore, this officer should be responsible for the performance of those many routine and simpler duties of the
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Chancellor's office in order that_ the Chancellor may be left free for those activities that belong to his leadership of the University System.
University Committees
In addition to the four pennanent committees-committee on organization and law, committee on finance, committee on education, committee on visitation-provided for by the by-laws of the Board of Regents, it is recommended that one on physical plant and equipment be created. The :-;tudy of the physical plants of the University System of Georgia that has been made under the direction of the Survey Committee reveals a large number of deficiencies. The suggested committee should be charged with the significant task of having comprehensive plans prepared for the future physical development of each of the member institutions of the University System.
For the purpose of securing effective and economic operation and use of the physical plants of the several institutions, it is recommended that immediate provision be made for the services, during such tenn or period as may be found necessary, of a competent and experienced engineer to study and advise relative to such changes in the physical plant arrangements and services at each institution of the University System as will insure the desirable minimum of cost for the maintenance, upkeep, and future development of such plants. The complete report made to the Survey Committee by Dr. R. L. Hamon should be placed at the disposal of such au enginel'r.
University Cmmcils
For the paramount purpose of promoting that internal integration of the University System which is the product of mutual understanding and complete co-operation of
22

individuals, it is recommended that steps be taken to organize under the direction of ~e Chancellor a series of university councils representative of the institutional, educational, and scientific interests concerned. The following are cited as illustrative of the organizations in mind:
Superior Council .Junior College Council Teacher Training Council Scientific Research Council Student Life Council All-University Alumni Council The principal one of these councils is that termed the Superior Council. This council should consist of the Chancellor of the University System, as chairman; the presidents of the University of Georgia, The Georgia State College for Women, School of Technology; the Director of Research for Agriculture; the Director of Agricultural Extension work; and such others as may be selected to make this body representative of the wide and varied interests in the University System. It should be the recognized duty of such Superior Council, under the leadership of the Chancellor, to consider and to make recommendations to the Chancellor, the Board of Regents, or the respective faculties for changes in legislation affecting the University Sy:;;tem, for changes in regulations concerning the staffs, for extensions or curtailments of the activities of the University System, and for the establishment of new divisions and departments; also, recommendations concerning the distribution of funds among the several institutions, the conditions of entrance to the several institutions, tlw conditions upon which degrees shall he conferred, the conditions govermng the transfer of students and
23

their credits from one institution to another, the conditions upon which scholarships a11d fellowships shall be conferred, all questions of interinstitutional relations and of relations with other institutions of higher education, and all other matters which are vital to the development of the University System as a well co-ordinated agency of the state for higher education.
The successful operation of such Superior Council may be looked upon as a measure of the ability of the units of the University System to contribute to the organic unity of the University System.
The proposed Junior College Council, the Teacher Training Council, and the Scientific Research Council should be made up of the presidents of the institutions immediately concerned with the particular phase of higher education indicated by the title, and such others as may be chosen by the Chancellor or the faculties. These councils should meet at regular intervals, under the chairmanship of the Chancellor, for the consideration of those problems which constantly arise in this day of continued educational change and institutional adjustment.
The proposed Student Life Council and All-University Alumni Council should be composed of the properly chosen representatives of the student bodies and of the organized alumni of the several institutions of the University System. Under the leadership of the Chancellor, these councils should be utilized not only for the direct benefit of the institutions themselves but also for the development of a sharper and wider state consciousness of the place of the University System in the social economy of the state.
24

CHAPTER, III
u MEMBERS OF THE NIVihlSITY SYSTEM
The purpose of this chapter will be to present the recommendations of the Survey Committee regarding institutions to be continued as member institutions of the University System. In the next chapter, recommendations will be made regarding the modifications of the purposes of the several institutions and the transfers of work from one institution to another.
Secondary Schools
In the University System of Georgia there are several institutions that are concerned exclusively with work at the high-school and junior-college levels. The Survey Committee recommends that the Board of Regents give early consideration to the adjustment of the program of the University System so that it may be in harmony with what are the evident trends with reference to the administrative control of high-school and junior-college work. The administrative responsibility for public high schools in this country is vested in local authorities subject to standards prescribed by the state. The local community and state share in their financial support. The acceptance of the high school as a local institution is all but universal. In the University System of Georgia, however, there are five four-year high schools for whites. In addition there are three junior colleges that offer two or more years of high-school work. The time has come when Georgia should place the responsibility for work at the high-school level on local school authorities.
Junior Colleges
In the past twenty-five years, a new educational unit -the junior college-has been developed. Its growth
25

during the past ten years has beern very rapid, and it is now evident that this new institution is to become in some form or other a permanent part of our program of education. Naturally, the administrative and financial relations of the state and of the local community to the junior college have not become so clearly defined as they have in the case of the high school. In recent years, however, the trend has become fairly evident. The tendency is to regard the period covered by the junior college as a part of American secondary education and to place the responsibility for administration on the local unit as is the case with the high school at present.
The state of Georgia has been tardy in accepting the view that the junior college is a local institution. All of the publicly supported institutions of this type in the state, save one, are supported and administered by the state through the Board of R,egents of the University System. This is so contrary to the trend in America with reference to secondary education that the Survey Committee does not hesitate to urge a change of policy in this matter. The fact that the people of the state have grown accustomed to having the state bear practically the entire cost of maintaining junior colleges will call for courageous leadership in order to bring the people to accept the proposed policy.
The acceptance of these views would mean that the high-school and;or junior-college work in Georgia, now under state administrative control through the Board of Regents, at the following places would be discontinued as a state responsibility:
Georgia Vocational and Trade School, l\fonroP 4th District A. & M. School, Carrollton 7th District A. &. ::\1. School, Powder Springs 8th District A. & M. School, Mac1ison
26

9th District A. & M. School, Clarkesville Georgia Industrial College, ~arnesville Middle Georgia College, Cochran South Georgia State College, Douglas These institutions are now, or were originally, agricultural and mechanic arts schools established under the provisions of an Act passed in 1906. As pioneer institutions, the district A. & M. schools have served a valuable purpose. They were established before the general development of high schools and considerably prior to the time when instruction in vocational agriculture became a part of the program of high-school education in Georgia. They were useful in their day not only as high schools, when local high schools were lacking, but also as pioneer institutions in teaching agriculture and home economics at the secondary-school level. The general development of high schools in the state and the addition of agriculture and home economics to their curricula have changed conditions so that no longer is there justification for the maintenance of the high-school work in these institutions at the expense of the state. The efforts that have been made in several instances to transform them into institutions of a different type are a recognition of the fact that they have outlived their usefulness in their original form.
The importance of the acceptance of these recommendations by the state cannot be overemphasized. It is not reasonable to expect that communities having in their midst high schools supported by the state will exercise initiative in developing local programs of highschool education. They will be disposed to leave both the administrative and financial responsibility to the state and to confine their efforts to securing increased funds from state sources.
27

The five district A. & M. schools that have limited their work to the high-school le,el are not doing work that is distinctive either in quality of instruction or in the character of the curriculum offered. The same is true of the high-school work remaining in the institutions at Cochran, Barnesville, and Douglas.
The main argument advanced for the continuance of these schools is the presence in their student bodies of pupils who are too old to attend the regular high school. The Survey Committee obtained the ages of the students and found in each school some students who were retarded in their school progress. The number was relatively small. There were not enough over-age students in all of the schools to make one fair-sized school. Since there were so few in each school, it was not possible to make any considerable adaption of the work to their needs. On the whole, these students would probably have been better off if they had been admitted to colleges as special students.
In Georgia, there is considerable opinion current to the effect that the Georg-ia Vocational and Trade Sch()ol at Monroe is serving a distinctive educational mission by offering instructfon in the trades. This school draws its students from a much wider area than do the other district A. & M. schools. This is undoubtedly due primarily to the difference in the instruction announced for this school as contrasted with that announced for the other schools. The intentions of the staff are excellent, but the school is not giving any serious vocational training. Furthermore, the school has no main building, and its plant is less worthy than that of most of the institutions.
The case of the junior college may not at the moment be as clear as is that of the high school. This is due to the recency of its developments and the tendency to think
28

of it as a part of the program of higher education. In fact, the junior college should b~ a part of the upward expansion of the common school and not a part of the program of education concerned primarily with the training of specialists. Furthermore, in its clientele, the junior college is distinctly a local institution. The data collected by the Survey Committee in connection with its study of the geographical distribution of students shows this to be true in Georgia, as has been found elsewhere, in spite of the efforts of some of the junior colleges to draw their student body from the entire state. The local chara,cter of the junior college and the functions which it has in the program of education point to the desirability of the transfer of the junior college to local communities.
It may be well at this point to call attention to the recommendations made by a commission in a report on higher education in California-a state in which the junior college has had a very considerable development.
''The Commission affirms and recommends the continuance of the existing policy which recognizes legally, if not completely in fact, that the junior college period is the last stage of the upper or secondary school period of common schooling, the dominant purpose of which is general to all purposes of civilized life in so far as different students wish to or can achieve them.
''If there is a general trend throughout the United States it affirms the practice of the State of California.'' 1
Local communities in Georgia are not so well prepared to take over the program of education at the junior-college level as they are at the high-school level.
1 State Higher Education in CaJifornia, Report 0of the Carnegie Foundation for the Advancement of Teaching, June, 19321 p. 34.
29

As indicated above, it is the opiftion of the Survey Committee that the junior-college program should be integrated with the work of the high schools, thus making them local institutions. \hen that time arrives, provision should be made by the state of Georgia for financial assistance to be given to local communities for the development of junior colleges under standards to be prescribed by the state. Logically, as the junior colleges become an integral part of the program of secondary education, they should be placed under the State Board ' of Education. The Survey Committee believes this change should be made when the state of Georgia makes provision for a unified administration by the state of the elementary and secondary schools by creating a Stat~ Board of Education with the power to select its chief executive officer.
During the period of transition, the Board of Regents may deem it desirable to continue to maintain certain junior colleges as separate units. If this is done, the following centers are suggested in order of need: Carrollton, Dahlonega, and Douglas. There is considerable doubt regarding the need for an institution at the last named place. In addition to the separate junior colleges, it is assumed that junior-college programs of general education will be maintained at the University and at The Georgia State College for Women at Milledgeville. The Survey Committee recommends that similar juniorcollege curricula be offered at the Georgia State Woman's College at Valdosta, the South Georgia Teachers College at Statesboro, and the State Agricultural and Normal College at Americus.
In making the above suggestions regarding the separate junior colleges, the Survey Committee does not imply any weakening in its position regarding the de-
30

sirability of the independent junior colleges becoming local institutions. It only recogni~es that a period of transition. is necessary. During this transition period, such action as the Board of Regents takes affecting separate junior colleges should contemplate that at the earliest possible date arrangements will be made to turn them over to the local communities. The Board of Regents should be empowered to transfer the property of the institutions listed above to local communities for school purposes.
Four-Year Colleges T-Vhich Should Be Discontinued
One who studies Georgia's institutions of higher learning cannot but be impressed by the extent to which the quality of work done has been sacrificed in response to the demands of local communities to have colleges located in their midst. Under pioneer conditions, there is much to be said in favor of wide distribution of institutions of learning; but the improvement in means of transportation and communication that has taken place in the past generation makes it practicable for institutions to serve much wider areas than formerly. Furthermore, the expense of providing good institutions of higher learning has increased so greatly that it becomes imperative for a state with as limited financial resources as Georgia possesses to conserve them in every way practicable.
The Survey Committee is strongly of the opinion that the time has come when the state should place emphasis upon the quality of work done in its institutions of higher learning. The several institutions scattered over the state have so taxed the financial resources that even the stronger institutions, such as the University, School of
31

Technology, and The Georgia tjtate College for Women at Milledgeville, have not been able to set the standards they .should. The limited resources of the state and the importance of providing more adequate financial support for plant, equipment, and staff at each of the leading institutions call for drastic action. The Survey Committee recommends the discontinuance, as four-year institutions, of the following:
Bowdon State Normal & Industrial College, Bowdon North Georgia College, Dahlonega Georgia State College for Men, Tifton Georgia State Woman's College, Valdosta 1 In considering these recommendations, the following points should be borne in mind: 1. Elsewhere in the report the need for a junior college in the western part of the state is indicated. In the opinion of the Survey Committee, this school should be located at Carrollton rather than at Bowdon. The state need have no hesitation in abandoning the plant at Bowdon as it has but. little value. A good strong junior college located at Carrollton would render much better service to the state than do the present provisions. 2. There is probably a place for a junior college in the northeastern part of the state, and an institution located at Dahlonega should be able to serve this area. Whether or not this school .should be a part of the Uni-
1 In Chapter IV, it is recommended that the Georgia State Woman's College at Valdosta be made a two.year teacher-training institution and that it offer, in addition. a junior-college program of general education.
32

versity System depends upon the policy adopted regarding the control and support of junior colleges. When the recommendation is made that the college at Dahlonega be discontinued, it is on the assumption that it will be limited to junior-college work and, in harmony with the general recommendation, will become a part of the common school system.
3. This report suggests elsewhere that the institution at Valdosta be made a coeducational school. With this change, there would be no need to continue \he college at Tifton. The following three factors were d._,minant in selecting Valdosta as the location for a state institution rather than Tifton:
a. The plant at Valdosta is much superior to the one at Tifton.
b. The institution at Valdosta is much better established and has already set a higher standard of quality than has Tifton.
c. The experiment station at Tifton can use the plant and equipment of the college to good advantage.
The Survey Committee does not believe that Georgia can afford to maintain two good four-year colleges in the southern portion of the state. The four schools whose discontinuance as four-year institutions has been recommended are all too small to be run most economically and effectively-their libraries, laboratories, and plants are inadequate, and the training of their staffs is below the standards that should obtain in four-year colleges.
Some of the facts that influenced the Survey Com-
33

mittee in its decision to recommend the discontinuance of the above institutions as fo'ttr-year colleges are:
1. A relatively small number of students was found in the junior and senior years at the institutions. The enrolment of juniors and seniors in each of the institutions is shown in Table I.

Table I
Number of Students Registered as Juniors or Seniors in the Colleges of Arts and Sciences Spring Term, 1932

Location Institution

Juniors

I

Seniors

I I I I I Men Women Total Men Women Total

Dahlonega North Georgia College

I I 21

4

25

I
I 20

I
I

I

I 5

25

- I I I I Valdosta

Georgia State Woman's College

50 I 50 I -
!

25

25

Tifton Bowdon

Georgia State College for Men

21
I

Bowdon State Normal & Industrial College

6
I

4

25 21

I II

I

I 7 I 13

5
I

I 13

34

3

8

I

Conditions may at times make it desirable for a state to maintain a four-year institution in spite of a very limited enrolment. In the opinion of the Survey Committee, these conditions do not obtain in the instances in which discontinuance of the four-year institutions has been recommended. The remaining institutions of the state would be able to care for the senior-college students of the discontinued four-year institutions with little or no increase in the size of their faculties.
2. The number of full-time faculty members in the various departments in these institutions is shown in the following table:

34

Table II Number of Full-Time"'Faculty Members in Each Department

A. North Georgia College Dahlonega, Georgia

Agriculture and botany

1

Chemistry

1

Commerce

2

Education

1

English

1

History

1

Home economics

1

Latin

1

'Mathematics

1

Modern languages

1

Physics

1

12

B. Georgia State Woman's Col-

lege, Valdosta, Georgia

Art

1

Biology

1

Chemistry

1

Education

2

English

2

Geography

1

History

1

Latin

1

Mathematics

1

Modern languages

2

Mu~c

2

Physical education

2

Social science

1

Vocal expression

1

19

C. Georgia State College for Men, Tifton, Georgia

Agriculture

2

Biology and physics

1

Chemistry

1

Commerce

1

Education

1

English

2

History

1

Mathematics

1

Modern languages

2

Physical education

1

13

D. Bowdon State Normal & Industrial College, Bowdon, Georgia

Commercial subjects

1

Education

1

Education, psychology, and

sociology

1

English and history

1

French and music

1

History and physical

education

1

Home economics

1

Mathematics

1

Science

1

9

It is evident that almost without exception the staffs are necessarily so small that the departments will be unable to give the opportunity for specialization that should constitute a distinguishing characteristic of the senior college.
To give opportunity for the desired degree of specialization at the senior-college level, it is necessary to have
35

a sufficient number of senior--college courses so that juniors and seniors will not be obligated to elect their work largely from the :first two years of the college. The conditions for the four institutions under discussion are shown in Table III.

Table III
Percentage of Classes Containing Students from Three or More Years
Fall Term, 1932-33

Location Institution

I I Percentage with Stu- Percentage with

dents from Three

Students from

or more years

Four Years

Dahlonega North Georgia College

I

39.1

I 14.1

I

I Valdosta Georgia State Woman's College

37.4

I 11.1

Tifton

Georgia State College for Men

I

62.7

I 27.5

rBowdon State

I

Bowdon

Normal &
1 Industrial College

12.2

II

I 0.0

Dr. F. J. Kelly made a study for the Survey Committee of the senior-college curricula, and in his discussion of the purposes of education at this level he comments on the conditions that have been indicated above as follows:
''Specialization fundamental to the mastery of a subject involves adequate teachers, equipment, and courses. Without these a college cannot do justice to a student. A young person who devotes the most valuable four years of his youth to study in college has a right, in this day of high-grade college work, to expect that his senior college training shall give him in some chosen :field of specialization that

36

intelligent understandi~g of both materials and methods of study necessary to e.nable him to pursue advanced study effectively if he cares to do so. Some decades ago in the pioneer period of college development, poorly equipped colleges were no doubt necessary because adequate ones were not available. Such can scarcely be urged as justification to-day for inviting a generation of college youths to spend their precious time and their money at an institution not in position to afford them a high grade college education....... .
''As long as course offerings are meager and faculty and equipment inadequate for the double purpose, the four-year college is likely to be organized in such a way as to defeat both the junior college purpose and the senior college purpose. Junior col. lege courses must be organized as a part of a departmental sequence because there are inadequate senior college courses to make a sufficient specialization. On the other hand, broad divisional courses on the junior college level cannot be organized, even though these are superior both from the junior college point of view and from the point of view of foundations upon which the senior college courses can be built. Such broad divisional courses have been sacrificed for beginning courses in the several departments.
"A further fact is revealed" in Table III "which indicates how both senior and junior college effectiveness is nullified when courses, faculty, and equipment are inadequate. In this table it will be observed that in many of the classes there are students enrolled from the freshman and junior years, or from the sophomore and senior years. In fact, a consider-
37

able number of classes have students enrolled from the freshman and senior years. This is due largely to the fact that there are insufficient courses offered to meet the needs of the students, if students were held to courses designed primarily for their own year. The result is that the work in a class which is presumed to be primarily for seniors has to be adjusted to the stage of advancement of sophomores or even freshmen. This must necessarily make the class less efficient for either the seniors or the lower classmen, and it is probable that in many cases it is made less efficient for both groups by compromising between them. It is obvious that as long as the condition prevails which this table reveals, the courses in a given department cannot well be graded in difficulty from the more elementary to the more advanced standard, nor can the more advanced courses be built on the assumption that earlier courses will be prerequisite to them. As long as this is the case there is grave doubt whether the more advanced courses can really take on the essential element of a senior college course, namely, the intellectual training for the mastery of a given field."
The discussion up to this point has been concerned with the effectiveness from an educational viewpoint of the .senior-college program in the small institution which has a limited faculty and inadequate library and laboratory resources. The state of Georgia is not only interested in offering a good quality of education to its youth but it also has an interest in doing this with a minimum expenditure. The studies made by the Survey Committee show that faculty preparation in the small institutions is not so extended as it is in the larger ones and that
38

the faculties are not so well paid. In spite of these facts, however, the data collected sho~d higher unit costs for instruction in many subjects at the senior-college level in the small institutions than were found in the larger one.s. R,elatively large expenditures per student-credit hour were shown as follows:
1. Georgia State College for Men at Tifton: French, Spanish, and mathematics
2. Georgia State Woman's College at Valdosta: econ?mics, German, Latin, and mathematics
3. Bowdon State Normal & Industrial College at Bowdon: commerce and economics, education, philosophy, and psychology
4. North Georgia College at Dahlonega: astronomy, home economics, and Latin
There were three or fom cases of relatively high costs per student-credit hour at the University. These were in subjects, except in one or two instances, that' were not taught elsewhere in the University System and for which, in spite of high unit costs, current opinion would give sanction to one center of instruction in a state. The most important factor in causing high unit cost is the large proportion of small classes. The Bowdon State Normal & Industrial College reports (see Appendix A) showed that for the fall term, 1932, 68.6 per cent of the classes had enrolments of ten students or le.ss. The main argument for the transfer of students who have completed their junior-college work from the four institutions under consideration to others more adequately staffed and equipped rests on educational grounds. Nevertheless, it is evident that sound educational practice would result in a considerable financial saving to the state.
39

Preparation of 'C.'f3achers
It is generally accepted as a responsibility of the state to prepare teachers for service in its elementary and secondary schools. The University at Athens and The Georgia State College for Women at Milledgeville will assist in this undertaking. In addition, it is recommended that facilities be provided at the following places for the training of elementary teachers only:
South Georgia Teachers College, Statesboro State Agricultural and Normal College, Americus Georgia State Woman's College, Valdosta The preparation of teachers at these places is recommended because, in the opinion of the Survey Committee, the University and The Georgia State College for Women
will not be able to supply the needs of the state for elemen-
tary-school teachers. This statement is based on a study made for the Survey Committee by Dr. Doak S. Campbell.
The following statements have been taken from that report:
''The average experience of white public-school teachers in Georgia is six years. This would indicate that, ordinarily, one-sixth of the total number should be replaced each year. This would mean that there should be an annual supply of 1770 elementary-school and 6,15 high-school teachers to meet the needs of the state. . . .. The peculiar conditions under which teachers have been employed during the past two or three years, however, show that, in actual practice, the annual number of new teachers is much lower than is above indicated." (Appendix B shows the number of new or beginning teachers among the
40

7368 teachers included in this study, and the estimated number for the state at a whole.)
"In determining the scope of the teacher-training obligation of the University System of Georgia, it seems safe to assume that the number of new teachers required annually will be considerably less than the estimate based upon the average number of years 'Of experience. On the other hand, it would probably be unwise to assume that the estimate for the state, based upon the actual number of new teachers this year, would be sufficiently large to supply the demand during normal times. Even though the state could calculate in advance the number of new teaching positions each year, it would not be justified in limiting its training to that number. There should always be an ample margin above the number needed in order to allow for selection.
''All factors considered, it may be safely assumed that for the present the University System should provide an annual supply of teachers as follows: white elementary-school teachers with two years of preparation-800 to 1000; white elementary-school teachers with four years of preparation-200 to 400; white high-school tea:chers with four years of preparation-150 to 200."
In connection with the study of teacher demand, data were collected on the training of the teachers included in the study. The data are to be found in Appendix C. It is evident from this information that the standard of preparation should be increased. The generally accepted minimum of preparation for elementary-school teachers is two years of study beyond high school. Of the teachers reporting, 37.9 per cent fall below this minimum. The showing in the case of the high-school teachers is better,
41

but 26 per cent do not have the baccalaureate degree, which is usually considered to lte the minimum amount of training. It is evident that in both groups of teachers there is opportunity to set higher standards of preparation, and present economic conditions offer an excellent opportunity for taking this step.
The institutions that have been suggested may not be sufficient to completely meet the needs for new teachers. If this proves to be true, Carrollton would be the logical center for a normal school in which a two-year program for the training of elementary-school teachers would be given.
Schools for Negroes
The discussion up to this point has been concerned with schools for whites. The Survey Committee is of the opinion that the same general principles which have been garding administration and support of schools should developed in connection with the schools for whites reoperate for the Negro schools. The tardy development of education for Negroes, both at the secondary and higher levels, may make necessary a temporary modification of the application of these principles.
The state has depended to a considerable measure on private resources for the higher education of Negroes. This is reflected in the high percentage of colored teachers, as contrasted with white teachers, who have obtained their preparation in private institutions, as well as in the evident failure on the part of the state to adequately provide for its higher institutions for Negroes.
The distribution of the colored population (Figure 1) and the location of the privately endowed institutions for Negroes make it clear that the greatest need for the
42

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Q 0
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r..:1

0 Q

C..l.)
:I
"'i.i:

UJ
... Z u'!: <( I
a

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..-.~.,::: :... :_::.:.:.:
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43

development of higher institutiw.1s at state expense is in the area south of Atlanta. Fortunately, the three state institutions are in this area. The Survey Committee is convinced, as a result of its examination of these three institutions, that there is need for a more liberal policy of support than has prevailed in the past. However, before any new developments are undertaken, car~ful consideration should be given to the formulation of a plan that gives promise of adequately meeting the needs of the colored population of the state for higher education. The private institutions in Atlanta and Augusta have developed liberal-arts work and are in a position to develop graduate work in this field. These facts, combined with the great need of the colored people for education along practical lines, show that the following curricula should be stressed in the state institutions: (1) teacher training, (2) agriculture, (3) trades, (-) home economics, and (5) commerce and business training. For the present, it is recommended that the emphasis in the training of high-school teachers be placed on agriculture and home economics.
The Survey Committee suggests two plans for consideration:
1. To abandon Forsyth and to divide the functions between Albany and Savannah as follows:
a. Continue 'savannah as a four-year institution giving special attention to agriculture, home economics, trades, and teacher training for both the high school and the elementary school.
h. Limit the program at Albany to the junior-college level. The functions of this school should be to prepare teachers for the elementary school and for the first two years of high school and to give junior-college work of
44

a general academic character and service courses in agriculture and home economics.
2. To abandon Forsyth and to locate a new school for Negroes in the Macon area. Designate this new institution as the land-grant college for Negroes and place in it all four years of college work in agTiculture, home economics, trades, teacher training, and liberal arts. For this purpose, the Survey Committee recommends that an effort be made to secure the institution at Fort Valley. At Albany, limit the work, which should be closely integrated with the proposed new school, to the first two years; offer a two-year program for the training of elementary-school teachers and, in addition, a junior-college program of general education and service courses in agriculture and home economics. At Savannah, limit the program to the junior-college level with offerings in elementary-school teacher training, a junior-college program of general education, and terminal courses in trades and commerce. The instruction in agriculture and home economics should be of a service character only.
Each of these plans has its advantages, but the Survey Committee strongly favors the second. The factors leading to this conclusion are:
1. Savannah is not a good location for an institution that places great emphasis on agriculture. The land-grant institution should be more centrally located with reference to the colored population and should be in a farming region that is fairly typical of the farming area occupied by the Negroes. This school should be made considerably stronger than the present institution.
2. Three institutions~two limited to the junior-college level and one four-year institution-are needed to supply the demands of the state for colored teachers. The
45

institution at Savannah should el_lrol from two to three hundred in the curriculum for elementary-school teachers in addition to the enrolment for instruction in the trades. At Albany there should be from three to four hundred in training for elementary-school teaching. The landgrant college should be a four-year institution which places its primary emphasis on agriculture and home
economics. It should be the center for the training of
high-school teachers and of the agricultural and home demonstration agents who work among the colored
people. It should prepare some high-school teachers in
the academic subjects and have from two to three hundred teachers in training for service in the elementary schools.
If the Board of Regents cannot see its way clear to accept this recommendation immediately, it is suggested that the school at Forsyth be continued. The expenditure for it at the present time is small, and the school is needed to help with the preparation of teachers for the elementary school.
In the discussion of secondary-school work for whites, it was recommended that the state place the responsibility for this work on local communities. The tardy development of high-school education for Negroes, however, may make it necessary to maintain the last year or two of high-school work in connection with each of the Negro schools for the purpose of training teachers for the elementary schools. The standard for teaching in the elementary schools for Negroes should soon be raised to the level of at least one year beyond high school. This continuance of high-school work at the higher institutions should be regarded as a temporary expedient only, and as soon as practicable the maintenance of high-school education should be left to local units, with assistance from the state.
46

.. Medical School
The Board of Regents of the University System of Georgia is faced with three alternatives as far as the State Medical College at Augusta is concerned. These three alternatives are:
1. To leave it at Augusta
2. To abandon it altogether 3. To move it to so"me other location 1. If the medical school is left at Augusta, it will be necessary- for its financial support to be increased and for it to secure its freedom from the local medical profession. The State Medical College is handicapped at the present time by a lack of funds, by being housed in a building that was never designed for medical-school purposes, by having only a paper control over the hospital, by the domination of the representatives of the local medical profession, by an inadequate teaching staff so far as the number of full-time persons is concerned, and by hopelessly inadequate equipment. With all of the hope and ambition and courage that Dean Moss has or may possess, it is not humanly possible for him alone, or with the co-operation and vigorous assistance of the Board of Regents, to make the State ~Iedical College under existing circumstances a first-rate institution.
2. The second alternative, of course, is to abandon the school. Much can be said in favor of this as there are four first-rate medical schools in the South-at Duke, Vanderbilt, Tulane, and Emory. These four schools are likely to supply all of the doctors that the South will need. At any rate, when the product of these four schools is supplemented by ,the product of the other medical schools of the country, it seems reasonable to assume that there will be no shortage of doctors in the South.
47

It is a fact that many of the tloctors of the South are now trained at Johns Hopkins, Harvard, Yale, and elsewhere, and no doubt this will continue to be true.
3. The third alternative is to remove the State Medical College from Augusta. If Georgia is convinced that she must hav:e a medical school and is able to maintain one, then the Survey Committee recommends that it should be located at Athens. There are several reasons for this. Among others, are these: The time has passed when the medical sciences can prosper alone. They need to be associated, intimately associated, with the reinforcing sciences that lie in allied fields. In other words, every doctor to-day needs a certain amount of training in chemistry, biochemistry, physics, and botany. Not only is this true, but the researches which the medical scientists carry on-the most distinctive and valuable ones-are now to be found in the. overlapping areas between the various scientific fields, so that the professors in the various medical fields are constantly calling upon the psychologists, the sociologists, the educationists, along with the chemists and the biochemists, to assist them in their investigations.
A second advantage which arises out of the location of the State Medical College as a part of a great university is the cross-fertilization of intellectual effort between members of the staff and the student body. Contact with men in other fields who are engaged in productive intellectual effort would have an important reactionary effect upon them. It is practically impossible for one to live in an environment that is fairly vibrant with intellectual ambition and effort without being stimulated to achieve.
The Survey Committee recommends the discontinuance of the Medical School. In this phase of its report, the
48

ScaulrveedyucCaotimonm. ittTeheedict-o:magmreietstewe iathndthtehespespcieacliiasltisotnamreediin-
agreement that the school, if it is to be continued, should be moved to Athens. When, and if, the school is discontinued, .careful consideration should be given to the establishment of a limited number of scholarships to be awarded to prospective students of medicine, selected on the basis of scholarship, intelligence, and other objective evidences of promise in the field of medicine. The recipient of a scholarship should enter into an obligation to return to Georgia for a certain number of years of practice.
If one hundred scholarships of five hundred dollars each were established, it would mean an outlay of fifty thousand dollars a year, which is about one-half of the present annual cost of the medical school and not more than one-sixth of the minimum amount the state should be prepared to Pxpend annually if it wishes to do a creditable piece of work in medical education. The Survey Committee believes it highly desirable for the Board of Regents to recognize thP principle involvf'cl in the award of scholarships to promising candidates in lieu of the state offering instruction in certain fields in which the demand is limited, consequently causing a relatively high per-capita cost.
A state may have two objectives in offering professional training of a given type:
1. To secure the services of a sufficient number of competent individuals in the given field
2. To furnish an outlet for the abilities of competent )Toung persons within its borders
In the judgment of the Survey Committee, the demands in certain fields are so limited that it is unneces-
49

sary and unwise for each sta~ to attempt to provide professional instruction in these fields. The Survey Committee recommends that scholarships should be used. Society and individuals would be much better served if we had a smaller number of institutions and had them of a higher grade. Medicine has already been mentionedother fields are library science, veterinary science, architecture, and social service administration.
Library School
During the course of the survey, the suggestion was made that the state establish a library school at the University. This would be the logical place for such a school if one were to be established. However, it would be unwise to start such a school. There is a well-established school at Emory, and it would be much better and cheaper for the state to establish a few scholarships to cover tuition costs than to attempt to maintain another school. The evidence at hand shows that more library schools have already been established than are needed.
Veterinary M{',dicine
Elsewhere in this report it is recommended that the professional curriculum at the University for the training of veterinarians be discontinued. The primary reason back of this suggestion is the limited number of veterinarians needed and the necessity for a much larger expenditure than the state is now making if a high grade of work is to be done. Alabama has a program for the training of veterinarians. There is no need for one in Georgia. It would be much better for Georgia to establish a system of scholarships that would make it possible for promising individuals interested in veterinary science to go to strong schools approved by the Board of Regents.
50

Forestry
.._
Forestry is another field in which the demand is limited but, for reasons given elsewhere in this report, it is recommended that this work be continued and strengthened. There is a place for one good undergraduate school of forestry in the Southeast, and Georgia has the best opportunity of any state in that region to develop such a school.
The examples are illustrative of the type of regional and institutional co-operation that is necessary if society is to have the largest returns from the funds-regardless of their source-spent on certain phases of highly important types of professional education,. True, it is difficult to get this co-ordination of effort when the institutions are not all within one state, but the organization of higher education in Georgia is such that the state has an opportunity to assume leadership in a movement of this kind.
Private Institutions
In connection with the discussion of the preparation of teachers, the providing of higher institutions for Negroes, and the organization and development of the program of adult education, mention is made of the desirability of the state's taking cognizance of the facilities that are made available by the presence of private institutions. This topic is of sufficient importance to justify calling attention to the desirability of keeping the duplication of all forms of professional and expensive specialized education at the minimum. This statement holds true even though some of the facilities may be provided by private funds. In the long run, the funds all come from society, and unnecessary duplication is almost certain to mean a lowering in quality. With the
51

previous decentralized control o.f.. the publicly supported
higher institutions, it was difficult, if not impossible, to adjust the program with reference to the developments that had taken place from private funds. The control is now in the hands of the Board of Regents, and cognizance may well be taken of the offerings of private colleges and universities.
Proposed Units of the University System
If the foregoing recommendations were accepted and put into effect, the University System of Georgia would consist of the following educational institutions:
University of Georgia, Athens The Georgia ~tate College for Women, Milledgeville School of Technology, Atlanta South Georgia Teachers College, Statesboro (limited to the training of elementary-school teachers) State Agricultural and Normal College, Americus (limited to a two-year program, and with a change in name) Georgia State Woman's College, Valdosta (limited to the junior-college level) Land-grant college for Negroes (a new institution to be located in the vicinity of Macon-preferably at Fort Valley) Georgia Industrial & Normal College, Savannah (limited to two years of instruction) Georgia Industrial & Normal College, Albany (limited to two years of instruction) Experience may prove that it would be desirable to have a two-year teacher-training institution at Carrollton. The research work in agriculture and home economics would be continued under arrangements suggested in Chapter IV.
52

CHAPTER IV
ALLOCATION OF ]'u~cTIONS
TO INSTITUTIONS
The preceding chapter is devoted to a consideration of the educational institutions that should be continued as part of the University System. If the recommendations made in that chapter are accepted, it will mean that the work done at the secondary-high-school andjor juniorcollege-level will be transferred from the University System to the administrative control of local communities. It will also result in the transfer of work done in the discontinued four-year institutions to the remaining four-year institutions, because it is not the recommendation that Georgia should curtail its offerings in the field of higher education, except in medicine, veterinary medicine, and mining engineering. The effort should be in the direction of the reduction of the number of four-year institutions the state is attempting to maintain.
The purpose of this chapter is to offer a series of recommendations relating to the transfers of work from one institution to another, to the curtailment of the range of institutional programs, or to other modifications of the present programs of the several institutions of the University System which it seems desirable to continue. These changes are designed to result in the modification of institutional purposes. The changes proposed are the results of consideration given to the remaining institutions in the light of the state's needs for different types of higher education, with a view to having in the University System provision for meeting most of the major needs economically and effectively.
53

Engineering Education
Virtually all of Georgia's provisions for engineering education are concentrated at a single institution-the School of Technology. Two other state-supported schools that offer courses in engineering were established earlier, but, from its opening, the School of Technology has grown rapidly until now it is the largest engineering school in the South and third in size among the engineering schools in the country. In spite of the fact that this institution occupies a prominent position in the South and is the only important engineering college in the state, it has never had the financial support its size and importance demand. Its further development and strengthening are matters of prime importance to the state. Financial support will be a major factor in this program of development but not the only consideration. Faculty, internal organization, curriculum and teaching methods, buildings and equipment, research, and evening courses are all elements requiring attention.
Mining Engineering
The state is fortunate in having practically all of its work in engineering education concentrated at one center. However, some further concentration seems to be desirable. The ''school of mines'' has been located at North Georgia College. At the time this study was made, the work in mining engineering was in abeyance at that institution. The Survey Committee recommends that it be permanently discontinued.
The Survey Committee's specialist in engineering was H. P. Hammond, who discussed the need for mining engineering in Georgia as follows:
''The question naturally arises as to whether or
54

not courses in mining- should he offered at the Georg-ia School of Technolog-y. It d<1es not appear to he advisable to establish a school of mines or to offer a g-eneral mining- curriculum. This belief is based upon several considerations: (1) The establishment of a school of mines is a very expensive undertaking-. Scarcely any other division of eng-ineering- education entails so g-reat an outlay per student for equipment or for operation. As the case now stands there is some question as to whether the School of Technolog-y has not already spread its slender resources over too broad a field. It would be manifestly unwi3e to divert any of its present funds to establish a completely new line of endeavor. The initial outlay for building-s and apparatus completely to equip a department of mining- eng-ineering- would be not less than $250,000. The annual expense of maintaining such a department would certainly not be less than $20,000, even if undertaken on a modest scale. (2) The number of students of the g-eneral course in mining- eng-ineering- in the entire country is about two thousand. These students are divided among- the sixty institutions that provide curricula preparatory to work in the mineral industries. The averag-e number of students per colleg-e per curriculum is but twentyfive. Enrolments are declining-. It is very doubtful whether there would be a sufficient number of students of a g-eneral course in mining- to warrant the
establishment of such a course in any institution in
Georg-ia, even if expense were no consideration. (3) The mag-nitude of mining- operations in Georg-ia is
not sufficient to warrant the establishment of such a
curriculum so far as the need of the industry is con-
55

cerned. (4) .Mining courses at the University of Alabama, where the United Sta'tes Bureau of Mines Experiment Station for the Southern District is located, serve the needs of the southeastern .states."
Chemical and Metallurgical Engineering
The foregoing arguments do not apply with equal force to metallurgical engineering. Among the recommendations regarding the School of Tec.lmology contained in the detailed report is the suggestion that the curriculum in chemical engineering should be strengthened. Chemical engineering and metallurgical engineering are closely related-they are, in fact, but two names applied to a general division of engineering practice, e.g., the chemical and related engineering operations of production of non-metallic and metallic products. With the strengthening of the work in chemical engineering and with the provision for a curriculum in metallurgical engineering, both of which the Survey Committee recommends, the program of engineering education in the state would be a well-rounded one. Dr. Hammond makes the following statement:
''Metallurgical engineering is increasing in importa:J.ce and vigor. Enrolments of students are also increasing. It is recommended that consideration be given to the establishment of a curriculum in metallurgical engineering as soon as funds can be provided without diverting them from other needs. At the start, it is believed that work in metallurgical engineering can be coupled up with chemical engineering. A workable plan for the gradual introdmtion of metallurgical engineering on a. degree-conferring ba~is would be to provide a cur-
56

riculum common to metallurgical and chemical engineering for the first three )'ears, with options between the two in the last year. As the work becomes more firmly established and as additional funds are available, further differentiation extending back into the third year of the course might be provided. When this occurs, the two curricula might be placed upon an independent basis co-ordinate with the other engmeermg curricula.''
Engineering at the University
The University of Georgia maintains a department of engineering composed of a professor and an assistant professor of civil engineering and a professor of electrical engineering. During the past ten years, the number of graduates has been about ten a year. rrhe budget for the academic year 1931~32 was $12,160.66. In addition to providing instruction for its own students, the department gives instruction to the students in agricultural engineering. The following is from Dr. Hammond's report:
"It is apparent that engineering work at the University is conducted on a very limited scale. The question naturally arises as to whether it should be continued. The answer to this question would undoubtedly be in the negative except for one thing: the ability and the personal qualities of th~ professor of civil engineering, Charles M. Strahan. So long as Professor Strahan continues in active service, it would seem advisable to continue the ;vork, since its product appears to be sound educatim. Professor Strahan has occupied the chair in ci,il engineer-
57

ing for forty-three years, an.d his connection with the University has been continuous .since his admission as a freshman in 1878. Upon his retirement, either of two things is likely to occur: the work may lapse into mediocrity, or there may be the temptation to build it up into a full-fledged eng-ineering college. Either of these results would be undesirable. The University could scarcely afford to maintain any department on other than a normal standard of quality, and for many years to come all of the resources for engineering education that the state can muster will be required to build up its one important engineering school-the Georgia School of Technology.
"It is recommended that upon Professor Strahan's retirement engineering work in the College of Liberal Arts and Sciences be discontinued. The laboratory and teaching facilities in electrical engineering could be transferred to advantage to the department of physic;;, and the surveying instruments and mate-
rials testing equipment could be transferred to the
College o:f Agriculture.''
Agricultural Engineering
With the above recommended change made, the only remaining wHk under the name of engineering that will not be conce:r:trated at the School of Technology will be agricultural engineering, which will be given at the University. Worr in this field is of recent origin and it is really on tritl. The Survey of Land-Grant Colleges and Universities, Bulletin No. 9 (1930) of the United States Office o: Education, comments on the status of the work in this field a.s follows:
58

"The data .... show that only about 225 students are enrolled in agricultural engineering in all of the land-g-rant colleges. The g-rowth in enrolment in this branch of engineering during the past 10 years was almost neg-ligible. It is true that the 20 land-grant colleg-es established this curriculum since 1925-2.6 and that it is therefore too soon to expect much expansion of enrolment. It is doubtful whether 20 landg-rant colleges are justified in offering- special curricula in this field, although instruction in eng-ineering- as related to ag-riculture should be g-iven in all land-g-rant institutions."
Ag-ricultural engineering was established at the University in 1929, and it is too early to evaluate the results. In the opinion o:r the Survey Committee, after the lapse of a few more years the work in agricultural engineering should be carefully appraised with a view to the determination of a future policy. It should not at this time be accepted as a permanent feature of the work of the University, although if it is to be continued in its present form it belongs in the Colleg-e of Agriculture rather than in the School of Technolog-y.
Engineering at the School of Technology
The foreg-oing- discussions make it clear that Georgia. does not face any serious problem in completing- the concentration of its work in eng-ineering- education at the School of Technology. The largest problem the Board of Regents must meet in connection with engineering education is that of providing the funds needed to give the School of Technology the staff, plant, and equipment that it should have in order to attain the sta.te, regional, and even national prominence that the future seems to offer
59

it. '1_1his statement should not be interpreted to mean that money is the only thing needed at the School of Technology. It is not. In the detailed report made by Dr. Hammond to the Survey Committee, many constructive suggestions are to be found regarding internal organization, curriculum, teaching loads, graduation requirements, research, and similar problems that can gradually be worked out by the staff of the institution, but it is important for the Board of Regents and the people of the state to know that the School of Technology is one of the three major institutions of the state that must have more generous support if it is to render the greatest service.
Two of the aspects relating to educational policy and internal organization, implicit in Dr. Hammond's report at several points, are so important in influencing the work of the institution that the Survey Committee strongly recommends their acceptance:
1. The several curricula impose an unusually heavy load on the students and comprise numerous discrete courses, instead of being shaped to meet broad educational aims. The requirements should be decreased in amount, without lowering standards of scholastic attainment, and the curricula should be integrated through the influence of comprehensive but definite purposes.
2. It seems desirable to draw the faculty into the formulation of educational policies to a greater degree than obtains at present. The policies, once determined, should be carried out by_ the regularly constituted administrative officers so that there need be no decentralization in this respect. A step of this character would mean much for growth on the part of the faculty.
60

rrhere remain four other sug,pestions regarding the work in engineering education that it seems appropriate to mention at this time:
1. The A. French rrextile School of the School of Technology is one of a number of similar schools in the cotton-growing states which is designed to prepare workers for the textile industry. Members of the Survey Committee have met the problem presented by this phase of engineering education in other situations. They are of the opinion that a basic study should be made of the aims, purposes, and methods of textile instruction for this group of schools.
2. Under the present arrangements, the School of Technology receives none of the funds that come to the state through the provisions of the Morrill Act and the supplementary Federal legislat:i:on. The Survey Committee is of the opinion that the School of Technology should be recognized as the institution devoted to ''Mechanic Arts' ' under the provision of the Morrill Act, and a fair share of funds from this source should be allocated to it. This should be done even though at this time the Board of Regents may have to reallocate state funds in order to do it.
3. The School of Technology has the possibility of becoming an important center for graduate work and research in engineering. The possibility of service in this field for the southern states should not be lost to sight, but the Survey Committee does not believe more should be done to extend the fields of graduate and research work until ample resources are available.
4. The need for additional funds is so great that the tuition charge for nonresidents should be increased from
$175 a year to $200 or $225.
61

Business E docation
In making its recommendations relative to business education in Georgia, the Survey Committee accepted the following premises:
1. That education for business at the college level should be a part of the University System.
2. That those who are responsible for the University System, so far as Georgia can support a program of training for business, are interested primarily in a program dealing with the fundamental problems of modern business and only secondarily in a prog-ram of vocational education. Never in the history of business has there been such a demand for business leadership as at this time. The problem of business leadership is of vital concern to business, to universities, and to the public at large.
3. That those responsible for the University System of Georgia, so far as they develop and administer a program of training for business, are primarily concerned with meeting the needs of Georgia.
4. That those responsible for the University System and for making decisions about business education are taking a long-time point of view of the issues involved. These issues and the objectives set up are considered against a foreground of forty or fifty years.
Several of the schools in the University System purport to be offering business education. In most of them the offerings are meager, and the facilities and staff are too limited to do good work regardless of the intentions of students and instructors. The Survey Committee has no means of knowing to what extent the Board of Regents will accept its suggestions regarding the discontinuance of institutions. The recommendation is made
62

that the only four-year institutions in which instruction should be offered in business edueation are the University at Athens and The Georgia State College for Women at Milledgeville. In one or more of the junior colleges, it may be deemed desirable to develop semiprofessional curricula in this field. Such curricula should be offered in institutions only when the demand is clearly defined and upon the basis of investigations made by the Chancellor's office.
Business Education at the University of Georgia and the School of Technology
The main recommendation relating to this phase of the work of the University System deals with the relationship between the University and the School of Technology.
The School of Commerce at the University was opened in 1913. It is an independent school affiliated with Franklin College and administered by its own dean. While the dean has fairly complete power over the organization and management of the school, it was not until the current year that the school was given its own budget. The faculty of the School of Commerce consists of three professors, two associate professors, one adjunct professor, four student assistants, and eight special lecturers. The school is well housed, but the library facilities are entirely inadequate.
In 1913, the School of Technology established the Evening School of Commerce, and three years later the day work in commerce was begun. Strictly speaking, the unit is a department and not a school, although the unit functions as a school.
63

These two institutions are the only ones in the Uni~ versity System that have devefoped their work in business education in any considerable measure, and the determination of the policy recommended with reference to the relationship of these two institutions was one of the most difficult problems that the St~rvey Committee met in its study of educational problems in Georgia. Dean W. H. Spencer made the special studies in this field of education, and the Survey Committee concurs in his recommendation that the School (Department) of Commerce of the School of Technology and the School of Commerce of the University of Georgia be consolidated and located at Athens under the jurisdiction of the University of Georgia.
The arguments presented by Dean Spencer and considered by the Survey Committee follow:
"In the present state of development of collegiate education for business, the State of Georgia, with its population and resources, does not need and cannot adequately support two schools of commerce. One law school meets its needs in legal education; one medical school meets its needs in medical education; one strong school of commerce, properly equipped and properly manned, will meet its needs in business education. On the other hand, the State of Georgia does need and can support one strong school of commerce by concentrating its attention and energies on the school at the University of Georgia.
"The appropriate location of the consolidated school presents a difficult problem-a problem for which there is no perfect solution. Any solution proposed will sacrifice advantages which seem to inhere in the present situation or which might be
64

gained by deliberate

sjoumd gemoetnhte rt hparto,p oasl la l .p oIitn tiss,

however, my of view con-

sidered, the location of the School at the University

will in the long run prove most advantageous.

"It is arguable, of course, that the combined school should be located at Atlanta in conjunction with the Georgia School of Technology. In the first place, a school of commerce at the School of Technology makes available for engineering students certain courses which they desire and need to supplement their technical training. It has previously been pointed out that a considerable proportion of the students of technology now avail themselves of this privilege. It is my opinion, however, that this need

can be met by the work of the Evening School of Commerce which should, of course, remain in Atlanta.1

"In the second place, the location of a school of commerce near a school of technology should to some extent be advantageous to the student of commerce who may wish to supplement his training in commerce with technical courses. ~Whatever this may be ~worth from the point of view of a student of com-

merce in the abstract, it is quite clear that the students of commerce at the School of Technology have not availed themselves of the privilege of taking these technical courses.

''In the third place, the location of a school of commerce in Atlanta provides a day school near at hand for large numbers of students who live in At-

1 "It is~ of course, understood that all students of technology will continue to get training in economics as a part of their program of general studies. I recommend that this work be strengthened and extended."'
65

lanta. Gradually, of course, J'tlore and more of these students will go to Athens, which after all is not very far away. In any event, Emory University now provides training in business in Atlanta for students who cannot leave the city.
"In the fourth place, there is some advantage, from the point of view of effective training for business, in having the school of commerce located in a large city. The advantage in question, even for a student of commerce may, however, be overestimated. Many schools of commerce over the country are now operating successfully in relatively small cities. The co-operative plan with which the Georgia School of Technology has been experimenting can without great loss of effectiveness be operated from Athens. Moreover, it would be entirely appropriate for the Evening School of Commerce to offer a program of work leading to the Master's degree in Commerce not only for local students but also for students who had graduated from the School of Commerce at the University. In this way the University System would furnish opportunities for its students to do their work in a business atmosphere. It is at this level of training that practical business contacts become highly important to the student.
''In the fifth place, closing the day School of Commerce in Atlanta will to some extent embarrass the administration of the evening school in getting a faculty for its work. This, however, does not seem an insuperable obstacle to the recommendation herein made. The Evening School can still without serious loss of effectiveness develop a competent faculty for evening work in commerce.
66

"If the State is to have but one school of com-
merce, it is logical, desirable, t1>nd expedient that it be located at the University. In the first place, from the point of view of effective work in commerce and in economics, it is much more important that the School of Commerce be closely associated with a department of economics than that it be closely assoeiated with a technical school. A department of economics at the University without a school of commerce would either languish for want of support or would under an agg-ressive leadership, and in the guise of building up its work in economics, be compelled to duplicate the work offered elsewhere in commerce. The latter contingency would almost certainly happen. The University cannot afford to have the first contingency happen.
"A .school of commerce without the support and corrective influence of a department of economics ~would tend more and more to develop into a narrowly vocational trade school. The close association of a school of commerce and a department of economics is essential for a balanced program in the former and for effective training in the latter. To a less extent what has been said here is applicable to the relationship between a school of commerce and branches of the social sciences other than economics.
''Since the School of Technology does not now have and is not likely to develop strong work in economics and in other social sciences, it seems log-ical and desirable that the combined school of commerce be located at the University where a department of economics must at all times be maintained.
67

"In the second place, so fa.._r as the authorities in the University System of Georg-ia may formulate plans for graduate work, the work should be located at the University where fairly comprehensive plans for graduate work now exist. Close association between commerce and economics at graduate level is highly desirable.
"In the third place, so far as the University System may encourag-e and approve plans for business research, it is desirable that the work be carried on at the University. It is difficult under any circumstances to differentiate sharply between research in business and research in economics. With the limited resources available for research in the University System it is highly undesirable that any .such differentiation be made in the System. The School of Commerce should, therefore, be closely associated with the department of economics so that such a differentiation will not become necessary.
"In the fourth place, if the combined school were located at some place other than the University, sooner or later and almost inevitably the Department of Economics at the University will duplicate the training and research program of the School of Commerce wherever located. The only practical way to prevent such development would be to abolish the Department of Economics at the University. This from the point of view of the University would be unthinkable.
''In the fifth place, the School of Commerce should be located at an institution where women are admitted. This is not a serious matter as the School of Technology might for the sake of having
68

a school of commerce on its campus relax its traditional rule excluding women fr~m its work.''
The Survey Committee recommends that the Evening School of Commerce of the School of Technology be transferred to the Division of Adult Education-General Extension-of the University System of Georgia.
Dean Spencer further stated: "In the :first place, eventually the Evening School
of Commerce should be the nucleus around which a real center of adult education should be developed for Atlanta, offering work in many :fields of interest as well as in the :field of business. If this development should take place, the whole program should of course be under the jurisdiction of the Division of General Extension of the University System.
''In the second place, if the School of Commerce of the Georg-ia School of Technology is closed, the Evening School of Commerce must, of course, be given a new administrative home. In view of the nature of its present and future work, it is logical and desirable that it be included under the Division of General Extension. This would be desirable even though the School of Commerce were left at the School of Technology. It is, of course, understood that the Director of the Division of General Extension will work closely with the faculty of commerce in carrying on this or any other extension work in the :field of commerce.
"In the third place, it would seem appropriate that the Director of the Division of General Extension should broaden extension work in the field of commerce. The Evening School is doing excellent work in Atlanta in adult education in business. The
69

....;...,

Division of Gt>Heral Extensioo :,.;hould now do some-

thing- of a similar character for other large business

communities in the State. It might, for example,

periodically schedule short courses or institutes at

different places in the State for i11terested g-roups

such as retailers, bankers, credit men, and account-

ants.''

lVork in Commerce at The Georgia

State College for Women

The Georgia State College for vVomen at :Milledgeville offers a two-year combination program for the training (a) of secretaries and (b) of commercial teachers. The courses are in the nature of terminal courses for students who may not go beyond the juniorcollege level. Even for the purposes mentioned, the program of work is unsound in its conception. The following statements are from Dean Spencer's report:
''In the first place, the program gives the student almost nothing in general education. In the second place, it consists almost entirely of training in techniques such as shorthand, typewriting, aJld commercial arithmetic.1 In the third place, in so far as it purports to train secretaries, the program crystallizes an extremely narrow conception of the functions of a secretary-a much narrower conception than that now held by most proprietary business colleges. In the fourth place, in so far as it purports to train commercial teachers, it embodies ideas and ideals long since obsolete. It is training teachers of clerical subjects, not teachers of commercial subjects."

1 "If students come deficient in arithmetic and must be admitted in spite of such deficiencies, the authorities should certainly do no more than provide non~ credit remedial courses for them."
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''The program of courses in economics at this institution, with which genuine"' work in commerce sh6uld be closely associated, is ill-conceived. On the one hand, it does not offer a well-rounded program at elementary and intermediate levels; and on the other, it announces certain advanced courses which are not adapted to the needs of this institution.''
The Georgia State College for '\Vomen enrols a very considerable proportion of the women who attend the publicly supported higher institutions of the state, and it should make some provision for training women for business. It is not, however, feasible or expedient to establish a school of commerce at this institution. Under the curriculum organization proposed in this report, women who desire the regular program of business etlncation can obtain their first two years in any junior or four-year college of the state and then transfer to tlw University for the last two years of the program. In spite of these provisions, the Survey Committee believes that it is desirable to establish a department of secretarial science and commercial teacher training at Milledgeville. This department, however, should be founded on very different conceptions from those which now prevail iu this field of work at The Georgia State College for Women.
Business Education for Negroes
Consideration should be given to the possibilities of the development of instruction in business education adapted to the needs of the Negroes. If the plan recommended in the previous chapter for the college for Negroes is accepted, the place for the terminal courses will be in the two-year institution at Savannah. These courses will undoubtedly be the first to be developt>cL
7l

Attention could then be g-iven .._to the practicability of giving- courses at a hig-her level in the four-year institution.
Veterinary Medicine The Survey Committee recommends that the training of veterinarians at the University be discontinued. The Committee finds itself in accord with the statements expressed by Dean Stange in his report to the Survey Committee. The following statements are taken from that report:
''The area represented by the seven states south of Kentucky and Virginia and east of the Mississippi needs one creditable veterinary college. At present, the state of Alabama and the state of Georgia each has a division of veterinary medicine, offering- deg-rees, etc. It would be in the interest of efficiency and economy for these two states to arrive at some understanding with reference to veterinary education. It is with considerable reg-ret that I am forced to the conclusion that professional veterinary education should be discontinued at the University of Georgia.
"The bases for this conclusion are as follows: 1. There is no apparent need for more than one veterinary college in the area represented by the southeastern states. The combined enrolment (Alabama 73, Georgia 42) of 115 students, based on careful calculations, would approximately maintain the present veterinary profession of that area. Any increased enrolment, due to expansion of veterinary service, would not be great enough to overcrowd a well org-anized veterinary college. The enrolment would be about what any average veterinary college should carry under present conditions.
72

2. Alabama, although not adequately provided with buildings, equipment or staff, nevertheless has the nucleus for the development of a creditable veterinary college at much less expense than would be necessary in Georgia.
3. The public attitude and consciousness, in my judgment, are not sufficiently favorable to veterinary medicine in the state of Georgia to make possible a creditable program of development in veterinary education.
4. Development of the present Division of Veterinary Medicine into a creditable College of Veterinary Medicine would involve expenditures and support which would not be provided, if one may judge by the past. The Division has been established for fifteen years and has an annual budget of $17,000.00, which is $5,400.00 less than reported five years ago. In 1927-28, according to the survey of the Land-Grant Colleges and Universities, the average income of ten of the eleven veterinary colleges in the United States was $64,388.50, while the total income for the Division of Veterinary Medicine at the College of Agriculture of Georgia was reported as $22,925.00, or approximately 35 per cent of the average. During the past five years, the funds available to the Division of Veterinary Medicine have decreased nearly 25 per cent from the already very inadequate sum of five years ago.
5. The old conception of veterinary education, viz.: the .alleviation of pain of individual farm animals, apparently still prevails in the minds of those in immediate charge of the college, of which the Division of Veterinary Medicine is a part. It was, and
73

still is, by some, regarded as an agricultural science. The principal function of veterinary medicine is to apply the medical sciences to the solution of particular problems in animal industry and public health. It is evident that veterinary medicine cannot render the service it can and should render unless our veterinary colleges base their educational programs on the fundamental medical sciences, as 1s done in human medicine.
''Modern veterinary medicine is a medical science and differs from human medicine only in its application. The most pressing problems confronting veterinary medicine to-day are the development of our state and national programs for the prevention and control of animal diseases and co-operation with public health authorities in the suppression of diseases transmissible from animals to man. \Vithout this conception on the part of those charged with administrative responsibilities, a veterinary profession cannot be developed which will be able to perform its proper function in our social and economic structure.''
Agricultural Education
The College of Agriculture is and should be the principal center in the University System for instruction in agriculture at the college level. A four-year program in agriculture is offered at the Georgia State College for l\Ien at Tifton, but a recommendation has been made in a previous chapter for the discontinuance of this college. If this proposal is not accepted for Tifton, it is recommended that the four-year curriculum in agTiculture be discontinued. The staff, equipment, and library are entirely inadequate for a progTam of the character that is now being attempted.
74

The Survey Committee recommends that the College of Agriculture of the University""of Georgia should be developed as the state's principal center of instruction, research, and extension in agriculture. It is commonplace to say that agriculture is a fundamental industry of Georgia and, as such, should have a conspicuous place in the University System. This does not necessarily mean large numbers of resident students, but it does call for sufficient emphasis on research and extension to make the influence of the College of AgTiculture felt on farms throughout the entire state. There may be a place for a few service courses in elementary phases of agriculture in the teacher-training institutions for elementary-school teachers, and, if some junior colleges are retained in the University System, it may be desirable to develop some terminal courses in agriculture at one or more of them, but, aside from these phases, instruction in agTiculture in the University System should be limited to the University'of Georgia.
These general remarks are preliminary to a more detailed consideration of what the Survey Committee believes to be one of the largest problems before the Board of Regents, viz., the development and integration of instruction, extension, and research in the field of agriculture. The present conditions are unsatisfactory and are cutting the state off from the amount and quality of service it should have for the welfare of agTiculture.
The main points involved in the present unsatisfactory conditions are:
1. Relation of the agricultural extension service to the College of Agriculture
2. Relation of the experirnental work in agriculture to the College of Agriculture
75

3. Relation of the College o:i. Agriculture to the rest of the University
The work in agricultural extension has been too widely separated from the rest of the administrative organization of the College of Agriculture and has been given too large a degree of independence from the head of the College of Agriculture. It is true that the recommendations for appointments to the staff of the extension division go through the President of the College of Agriculture, but in reality his relation to these ap-pointments and to the program of the extension division is very different from that which obtains in the case of the resident instructional division. This should not be.
Research in agriculture in Georgia is conducted by four agencies:
1. The Georgia Experiment Station at Griffin, which receives Federal aid
(The relation of this station to the College of Agriculture is only nominal. The legislation establishing the experiment station provided that the Chancellor of the University and a member of the faculty of the College of Agriculture should be on the governing board.)
2. The Coastal Plains E.xperiment Station at Tifton This station is maintained by the state and, previous to the formation of the Board of Regents, had no relation to the station at Griffin or to the College of Agriculture. 3. The College of Agriculture, which is doing a limited amount of research in agronomy and horticulture 4. The State Department of Agriculture, which has three experimental stations After the formation of the Board of Regents, a committee was formed for the purpose of co-ordinating the
76

research conducted by the first three agencies. There is little or no prospect of this ve'hture proving fruitful. The Survey Committee recommends that the Board appoint a director of research for agriculture. This director should be appointed by the Board on the recommendation of the Chancellor after there has been full consultation with the Dean1 of the College of Agriculture and the President of the University. This director of research should be immediately responsible to the Dean of the College of Agriculture, who should take the initiative in his selection, and should have the responsibility for the co-ordination of the research in agriculture at the College of Agriculture, at Griffin, and at Tifton.
The survey Committee believes the research conducted by the State Department of Agriculture should be transferred to the University System. If these steps are taken, the Georgia Experiment Station will comprise the research now done by the State Department of Agriculture, the station at Griffin, the station at Tifton, the College of Agriculture, and the present substations.
When, and if, a four-year land-grant college for Negroes is located in the central portion of the state, the Survey Committee recommends that a substa.tion be located at that institution.
The acceptance of the above suggestions regarding extension and research would mean that the College of Agriculture would have three co-ordinate divisions: resident teaching, agricultural extension, and the experiment station. These three divisions would be organized under the Dean of the College of Agriculture.
The integration of these several phases of the ac-
1 The Survey Committee recommends the use of this title instead of the present one of president.
77

tivities of the College of Agriclllture should be carried even further. Each of the three aspects of the workteaching, extension, and research~should be co-ordinated through the several departments of the College of Agriculture. For example, the Department of Horticulture would have an interest in teaching, extension, and research, and it would have its staff and facilities developed with these activities in mind. The proposed organization will reduce to the minimum the dangers of the pre.sent situation which are great because of the existence of three practically independent divisions concerned with agriculture. Furthermore, the effective administration of such an organization as has been proposed will give the people of the state larger returns than can be obtained under the present plan.
The final phase to be considered is the relation of the College of Agriculture to the rest of the University. While the College of Agriculture is adjacent to Franklin College and has made use of its admissions and business offices, it has in some respects grown up quite independently. This has resulted in some uncalled for duplication of effort, e.g., in education and chemistry. In both of these fields, certain general courses were ~ffered that had no claim to being agricultural or rural except for the fact that they were offered in the College of Agriculture. Duplications of this nature should be eliminated.
Points that might be commented on are the tendency in the College of Agriculture to unduly multiply courses, the extent to which there has been inbreeding in the faculty, and the multiplicity of degrees offered. These are all phases which can be corrected over a period of a few years by the local administration of the University.
The above mentioned phases are all of minor impor-
78

tance as compared with the realization on the part of the Board of Regents of the need for th~ development through the College of Agriculture of an organization and staff adequate to meet the needs of the state's most important industry-farming. Furthermore, the College of Agriculture should be hospitably received in the University, and ultimately there should be a spiritual union resulting in a university that is cordial toward the wide range of problems presented by Georgia's large rural population. No other type of university is worthy of public support.
Home Econmnics Education
Soon after the Board of Regents took over the responsibility for the University System of Georgia, steps were taken looking toward an integration of the three institutions at Athens: the University of Georgia, the College of Agriculture, and the State Teachers College. Instead of three presidents, each directly responsible to a board, there is now one president who is responsible to the Chancellor. Steps have been taken to reduce the duplication of effort that has existed for a number of years, but there is one place where there clearly is opportunity for the elimination of overlapping functions. The College of Agriculture and the Sta.te Teachers College each offers a four-year curriculum in home economics. This is quite unnecessary and wasteful. As rapidly as practicable, the two departments should be merged.
In this connection, it is- recommended that with the merging of the two departments there should be established a School of Home Economics, bearing the same relationship to the president's office as do the other schools of the University. The Board of Regents should plan to make this the leading center of influence in the state for
79

research, teaching, and extensi~n in home economics. In common with The Georgia State College for "\Vomen at Milledgeville, this School should train high-school teachers for home economics. "\Vhether or not the former institution should continue to prepare teachers in this field should be determined by the demand developed in the future. The University should be the one center for the training of home demonstration agents, dietitians, institutional managers, etc. In this recommendation, the Survey Committee differs with the specialist who reported on home economics.
The work in home economics at the University should be strengthened as rapidly as funds will permit. Meantime, the Survey Committee recommends that the proposed School of Home Economics limit its instruction to the undergraduate level. As the School is strengthened graduate instruction and research should be developed.
At this point attention should be directed toward the threefold program in home economics, viz., resident instruction, extension, and research. These should be represented in the work of the proposed School of Home Economics and co-ordinated through the departmental organizations and the Dean, as was proposed in the case of agriculture. The two cases are parallel in every re.spect ; only one or two minor suggestions need to be made:
1. In connection with the agricultural experiment stations, it was recommended that a director be appointed. For the present, at lea.st, this director should also be director of research in the field of home economics. In this capacity, the director would bear the same relation to the Dean of the School of Home Economics as he bears to the Dean of the College of Agriculture in the case of agricultural research.
80

2. The director culture should also

soefrveextaesndsiiorenctionrtohfeexCtoelnlesgioenoifn

Agrihome

economics. The relationship would be similar to the

one suggested above for research, except that the magni-

tude of the work in this case may make it desirable to

have an assistant director of extension in home eco-

nomics. The assistant director should be a mE-mber of

the faculty of the School of Home Economics, but her

appointment should be subject to the approval of the

Director of Extension. The overlapping of interest be-

tween research in agriculture and home economics and

extension in the same fields, particularly the latter, makes

it highly desirable that a means of ready co-ordination

be provided for in the organization that is established.

The program of instruction in home economics at The

Georgia State College for Women at Milledgeville should

be strengthened, but so far as the four-year professional

curriculum is concerned it should be limited to the prep-

aration of high-school teachers. Whether or not this

should be a permanent phase of the school's program

should depend on future developments. The emphasis,

as at the University, should be on improvement in the

quality of the work. At both the University and Mill-

edgeville, in addition to the instruction offered to the

students specializing in home economics, courses of a

service character should be provided for students from

other departments.

The facilities for instruction in home economics at

south Georgia Teachers College at Statesboro are so

meager that the Survey Committee recommends the dis-

continuance of this work, except for a few service courses.

None of the institutions for white students in the Univer-

sity System, except The Georgia 8tate College for

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Women and the University, should attempt more than service courses for prospective teachers and for the general student. Curricula should be so arranged that students may obtain two years of general education in any of the independent junior colleges or in the juniorcollege period of any four-year institution and then transfer to the University or The Georgia State College for Women for specialization in home economics. In support of this view, the Survey Committee submits the following:
"Higher education in general is confronted by several situations and conditions that are especially important to an area of instruction so clearly in process of development as is home economics: First, the junior college as a separate unit or as an extension of the public high school is developing rapidly. Graduates of these institutions in increasing numbers will demand admission to the home economics unit of the land-grant colleges with the expectation that they may secure their home economics degrees without special inconvenience or material loss of time. In other words, the land-grant college home economics units will be asked with ever-growing insistence that they adjust their specializations to permit graduates of junior colleges to enter them without handicap and to complete their work in two years.
''Second, the level of general education in the United States tends to rise more and more commonly beyond the training afforded by the high school. The affiliation of junior colleges with secondary education is indicative. Should home economics not contemplate reconstruction of its curricula in such fashion as to provide for two years of upper divi-
82

sion work to which admission may be obtained simply and easily by general junior ~liege preparation? Should its first two years or lower division instruction in home economics not be intended for those who are not able or who do not plan to obtain degrees but who wish to prepare for the intermediate types of life occupations for which training can be given in two years upon the basis of graduation?
''Third, although there is a tendency to start serious specialization at the beginning of the third year in college, graduate work is rapidly becoming something still more highly specialized and requiring content and method distinct from those of senior college courses. Is home economics prepared or tending to direct its further development in harmony with these tendencies ?
''All these situations are of serious import to those who would determine the future trends of home economics growth. This growth must take place during a period of general educational transition. Shall home economics attempt a long"time program of development looking to the traditional 4-year college superimposed upon the twelfth gTade or shall it venture to anticipate general changes in educational conditions that will take place during the next two decades?' 11
With the establishment of the proposed new landgrant college for Negroes, a four-year program in home economics for the training of teachers, extension workers, and other specialists in this field should be provided. The concentration of this work will make it possible to pro-
1 Survey of Land-Grant Colleges and Universities, Office of Education Bulletin No. 9, 1930, Vol. I, pp. 917-18.
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vide one strong center of inst1uction in a publicly supported institution for the colored population. The work at the other two centers for Negroes should be limited to service courses or to such trade courses as may be developed at Savannah. The program in home economics in the land-grant college should ultimately be based on a junior-college program of general education.
Preparation of Teachers
In the discharge of its obligation incurred by the establishment of public elementary and secondary schools, Georgia has JUade provision for the training of teachers and other educational officers to serve in these schools. In this enterprise of training teachers, private as well as publicly controlled institutions contribute. This factor should be recognized when the provisions are made by the University System for this phase of its program. The supply of teachers should be but little in excess of the state's needs, including due allowance for migration of teachers and for those coming from private institutions.
The Board of Regents has the further responsibility for the allocation to each institution of the specific types of teacher-training service it is to render. At present all but one of the state-supported higher institutions are engaged in some form of teacher. preparation. In addition to these, more than twenty privately supported colleges in the state are engaged in training teachers for the public schools. The present certification requirements and the present administration of the public school system render it impossible to require that persons be employed only for positions for which they have been specifically trained. Consequently, there is evidence of an
84

unwarranted oversupply of teachers with certain types of training- and, at the same tin'te, an undersupply of teachers with appropriate training- for other types of positions. In this connection, emphasis should be placed on the relatively low standard for teachers in the elementary schools for whites as well as in the schools for Neg-roes.
Dr. Doak S. Campbell made a study of the supply and demand for teachers in the state, g-iving due consideration to those coming- from private institutions. On the basis of these facts, the Survey Committee recommends the following program of teacher training:
1. University of Georg-ia: The two-year prog-ram for the training- of elementary-school teachers should be discontinued and the work in this field limited to a fouryear prog-ram. Teachers of hig-h-school subjects, including- ag-riculture and home economics, should be prepared at the University. This should be the only institution training- teachers of ag-riculture, and The Georg-ia State Colleg-e for Women at Milledgeville should be the only other school attempting- a four-year prog-ram in home economics for white teachers. As need arises, g-raduate work should be developed at the University for elementary-S'chool teachers, principals, supervisors, and superintendents. This should be the only institution in which work in education is developed at that level for the present. The preparation of special teachers of physical
education should be limited to the University. This work
should be taken out of the Colleg-e of Agriculture.
2. The Georgia State College for Women at Milledgeville: This college should maintain two- and four-year curricula for the preparation of elementary-school teachers. The former should be essentially the same as
85

the curricula offered in other i1tstitutions of the University System, and the latter should be very similar to the four-year curriculum offered in the University. There should also be four-year curricula for the training- of high-school teachers, including commercial subjects. A four-year program for the training- of hig-h-school teachers of home economics should be continued until such time as experience makes it evident that one center-the University-is adequate for this purpose. Meantime, Federal funds should be made available to the colleg-e for this purpose.
3:. South Georgia Teachers College at Statesboro: This school should limit its work in teacher training- to the preparation of teachers for the elementary school. It should offer a two-year curriculum and a four-year curriculum for a limited number of students. The justification for the four-year program is to be found in the large area served by this institution.
4. State Ag-ricultural and Normal College at Americus: The work of this institution should be limited to the two-year prog-ram for the training- of elementaryschool teachers.
5. Georg-ia State \Voman 's Qolleg-e at Valdosta: The teacher training- at this institution should be limited to the training- of elementary-school teachers through a twoyear program.
6. It seems probable that one other center at the twoyear level will be needed for the preparation of teachers. If this proves to be true, Carrollton is the logical center for this school.
7. School of Technology at Atlanta: Provision is made for the training of trade and industrial teachers at this institution. Those responsible for the institution
86

state that the interest in this field on the part of the student body is very limited. Tw\) possibilities are suggested:
a. Discontinue the work entirely and depend on teachers drawn from other states. The demand is so limited that this would not constitute a serious problem.
b. Transfer the work to the extension division of the University System and train persons who are engaged in industry but wish to enter teaching. This training combined with some summer work would undoubtedly be adequate.
Negro Institu.tions The data collected for the Survey Committee show that all of the f~cilities now available for the training of elementary-school teachers for colored 8chools are needed. However, only one of the schools should attempt four years of work for the prepa~ation of teachers. The land-grant college is the logical place for this part of the program. All three of the institutions should offer one- and two-year programs for elementary-school teachers for the present. Furthermore, it will be necessary to offer teacher-training work during the last year of high school at each of these schools for a time. The standard should be rais~d as soon as practicable.
Summary It is recommended that the program of teacher training in the University System consist of the following: 1. University of Georgia: Four-year curricula only for elementary- and high-school teachers and for special teachers in agriculture, home economics, and physical education should be offered. Graduate instruction in professional education of all types for teachers should be limited to this institution.
87

2. The Georgia State College,.Jor Women at Milledgeville: Two- and four-year curricula for elementaryschool teachers should be offered. The preparation of high-school teachers in such of the academic subjects as are sufficiently developed should be continued. The preparation of special teachers should be limited to home economics and commercial subjects. If students wish to prepare for teaching physical education or other special subjects, they should transfer to the University at the end of the junior-college period.
3. South Georgia Teachers College at Statesboro: The work of this college should be limited to the preparation, mainly at the two-year level, of elementaryschool teachers.
4. State Agricultural and Normal College at Americus: The work should be limited to the offering of a twoyear program for elementary-school teachers.
5. Georgia State Woman's College at Valdosta: The program should consist of a two-year curriculum for elementary-school teachers.
6. It is possible that a two-year program for elementary-school teachers will be needed at Carrollton.
7. Negro Colleges: The lanq-grant college should be the only institution offering a four-year program. The other institutions should limit their work to the preparation of elementary-school teachers. Each institution should offer one- and two-year curricula for elementaryschool teachers.
Suggested Co-operation
The preparation of teachers in Georgia cannot be placed on an entirely .satisfactory basis until there is a close integration of teacher certification by the State Department of Education and of teacher preparation by
88

the University System. The present certification requirements are unsatisfactory becau~ of the overemphasis placed on professional courses in education and also because of the character of some of the courses required. It is recommended that the State Department of Education and the University System give early consideration to the reorganization of the teacher-training curricula. The present organization of the University System opens the way for a type of co-operation between it and the State Department of Education that will make for economy and increased educational efficiency in the entire educational system of the state. It will be unfortunate if this opportunity is neglected to adjustto the needs of the school system the supply of teachers and the type of training offered.
Junior-College Curricula
In Chapter III the recommendation has been made that separate junior colleges be discontinued as part of the University System and that they be integrated with the public school system. The Survey Committee does not recommend that the junior-college programs be discontinued at those institutions maintained for teachertraining purposes or at those in which senior-college work is given. The Survey Committee is of the opinion that junior-college programs of general education for whites should be offered at the following institutions:
University of Georgia, Athens The Georgia State College for Women, Milledgeville South Georgia Teachers College, Statesboro State Agricultural and Normal College, Americus Georgia State Woman's College, Valdosta If it proves necessary to establish a teacher-training institution in western Georgia, a junior-college program
89

should be included. The School of Technology is not included because of early specialization in its curriculum. Junior-college programs of general education should be offered at each of the institutions for Negroes.
The Survey Committee recommends that all professional and technical schools, except the School of Technology, delay the beginning of their specialized curricula until the end of the junior-college period. This action would be in accord with the present tendency in education and would greatly simplify the problem of the separate junior college as well as of the junior colleges that are parts of other institutions. Furthermore, it would make it possible for a student who wants any type of specialization, e:x>cept engineering, to obtain his general preparation in a separate junior college or in any one of the fouryear institutions, except the School of Technology.
The acceptance of this view makes the character of the junior-college curriculum a matter of major importance. It is a question which should have the immediate attention of the best talent in the University System, and, while its final form can be determined only by those who are in the University System, it may not be amiss for the Survey Committee to call attention to three guiding principles which were enunciated in a recent report on higher education in California.
"Curriculum for Social Intelligence. A cur-
riculum devised to give the student about to com-
plete his general education a unitary conception of our developing civilization. This curriculum .should be provided in all institutions offering education on a junior college level. It should be the most important curriculum, in as much as it aims to train for social citizenship in American civilization.
90

"Whether or not other curricula are offered, this curriculum in social intelligenc'e should be. Analysis of the desires and intentions of most parents and students, as revealed by enrollment fig11res and interviews, indicate that this curriculum should enroll a large majority of the students on the junior college level. Here should be enrolled many students now taking university preparatory courses.... "
"The new curriculum for social citizenship, recommended as the future central core of junior college work, will differ markedly from university preparation in its purpose, scope, selection of material, and method of approach. To the larger central group, approximating 85 per cent of the junior college student body, this difference in the two types of courses is fundamental. It may be well to note certain probable reorganizations of material implied in the newtype course. A few will illustrate.
''The courses will tend to organize knowledge and intelligence for effective social behavior rather than for the intense and detailed mastery required for professional or avocational scholarship. They will be comprehensive rather than intensive, presenting major bodies of important facts in their relations to each other in a whole, rather than resolving them into their precise details through minute analysis. Orientation and summary gain a new importance. The organization of the curriculum will often disregard normal academic subject boundaries. Certain aspects of civilized life, highly valued in cultured, social living, which are omitted or subordinated in the ordinary academic curriculum, will be added or made important. Literature, as contrasted with
91

languages, will be emphasized...J\Iusic and the visual arts will be given a new recognition. Since the purpose will be appreciation of social values as well as of scientific facts, the methods of teaching and learning will be more varied than in traditional university courses. In the sciences, demonstration will become very much more general and more varied in its application. ' 11
The junior colleges should also develop specialized vocational curricula pitched at a higher level than are those of the high schools and designed to meet the needs of those students who must soon enter some occupation. These curricula should be offered only after a study of the local needs of the students and the conditions of employment leads to the decision that a useful purpose would be served. The California report makes the following statement:
''From the testimony of those concerned, it would seem that specialized vocational courses are generally unsuccessful in attracting students unless the institution is fairly successful in placing its students in remunerative jobs. Changing employment conditions, which are part of normal progress, and the present economic situation have had a demoralizing- effect on vocational enrollments. The Commission therefore feels both the importance of having the establishment of such vocational courses sanctioned by the facts of need as revealed by regional and state-wide surveys such as mig-ht be initiated by the council for educational planning and coordination, frequently corrected for change, and also the
1 State Higher Education in California, Report of the Carnegie Foundation for the Advancement of Teaching, June, 1932, pp. 35-36.
92

wisdom of the junior college maintaining a placement service to cooperate with-and to enlist the cooperation of employing concerns. The junior college that operates in academic isolation from life, without contacts with those activities of the community which give rise to its educational offerings and in which its human product ultimately :finds a place, is doomed to ineffectiveness in the vocational :field.' n
Some of the .students entering junior colleges will be looking toward university work in special :fields and, while the percentage of the junior-college population planning to enter a university will decrease as the junior college increases in popularity, these students will from the social viewpoint be an important group. The California report states as follows:
'' Preacademic Curricula. A group of curricula preparatory to university concentration in one or more of a group of arts, sciences, and literatures, provided by the senior colleges to give an advanced education in some phase of civilization for avocationa! or civic purposes, or provided as preprofessional preparation for advanced work leading to a professional career of scholarship in research or teaching.
"Such academic preparatory curricula should be open only to students qualified to pursue one of the well-defined purposes stated above. Students whose record of performance is not intellectually promising and whose interest is not definitely .set upon the purposes of advanced academic study in the university should be discouraged or estopped from taking such a senior college prepara-
t Ibid., p. 38.
93

tory course. Inasmuch as thil chief function of all such curricula is social in nature, they should all provide for the fundamentals of social training as well as for the specializations indicated. Here again the university requirements for transfer may legitimately determine the quality, extent, and method of courses offered to effectuate transfer from junior college to senior college.' n
Another approach to the curriculum offerings of the junior colleges might be made by devoting the main curriculum to general education. It would be the purpose of this curriculum to give the students a unified and consistent outlook on life. It should not be thought of as preparatory to the university curriculum. For the majority of students, this would be a terminal curriculum and its content and method would find their place in an effort to provide general education.
Provision should be made for some elective subjects for those students whose abilities and interests can carry them on to the University with its specialized work. The character of these electives for any given student would be determined by such plans as he may have for specialized subjects. These electives may be thought of as tool subjects of which foreign languages, mathematics, and statistics are examples. In addition there should also be some vocational courses of a terminal character, such as were described in the foregoing pages.
This plan has some advantage, over the plan proposed in California, in freeing the junior-college period to a greater degree from preprofessional and preacademic requirements. This would be a distinct gain. It has the
1 Ibid., pp. 38-39.
94

further advantag-e of on the junior colleg-e

not for

mspaekciniagl-izaesd

numerous courses.

demands The time

appears to be ripe for such a movement; professional

schools are rapidly coming to a realization of the desira-

bility of freeing this period of education from their

demands.

Adult Education

Prior to the time the Survey Committee began its work in Georgia, steps had been taken to co-ordinate the extension activities of the following institutions, which were the only ones selected by the Board of Regents to serve in this field :
University of Georgia, Athens 1 State Teachers College, Athens 1 Colleg-e of AgTiculture, Athens 1 School of Technology, Atlanta The Georgia State College for Women, :Milledgeville South Georgia Teachers College, Statesboro Georgia State Woman's College, Valdosta A committee representing- these institutions had agreed upon and put into operation policies affecting the program of adult education for the state that on the whole are satisfactory. The Survey Committee recommends that the plans be extended by making the following changes: 1. The Director of the program of adult educationGeneral Extension-should be responsible directly to the Chancellor of the University System. 2. The Evening School of Commerce should be placed in the Division of General Extension in accordance with the suggestion made in the report on instruction in business administration. 3. The Board of Reg-ents should make some budgetary provision for the Division of General Extension.

1 These institutions are now combined under the name of the University of Georgia.

95

4. In connection with the 'tliscussion of the preparation of teachers, attention has been directed to the importance of taking- into consideration the work done in that field by the private institutions of the state. In the development of the plans for adult education, due consideration should be given to the possibility of cooperation with the private institutions. The way should be opened for the Division of General Extension to secure the assistance not only of the institutions mentioned above but also of any other state-supported or private institutions which have faculty members qualified for services that are needed. Atlanta offers an excellent opportunity for a co-operative endeavor of this character.
5. Provision should be made for close co-operation between the extension work in agriculture and home economics and the general prog-ram of adult education.
Forestry Education There are four schools of forestry in the South-at North Carolina State Colleg-e of Ag-riculture and Eng-ineering, Louisiana State University and AgTicultural and Mechanical Colleg-e, University of Georg-ia, and Duke University. Of these, the last one limits its prog-ram to g-raduate work.
Dean Graves, of Yale University, made a study of the instruction in forestry at the University of Georg-ia and favors the continuance of the work. He states that:
"The University is not only justified in continuing- the work already undertaken but it has a clear responsibility for leadership in forestry comparable to that in agriculture.
''This conclusion is based on the following considerations.
"There is a well recognized need for a strong
96

school of forestry in the South. Most of the schools are in the Northeast, Middle West and Far West. The number of southern boys taking up forestry as a profession is now relatively small.
''The South will be permanently one of the most important forest regions of the country. Thirtynine per cent of the forest area of the United States is in the South. Georgia itself has a forest area of about twenty million acres, a resource which will be of enormous importance both through the industries dependent on its products and through its special relation to agriculture and grazing.
"The application of forestry in Georgia and other parts of the South has hardly begun. The problems of forestry center .about the productive handling of the land but extend to the industrial and economic features beyond those of technical silviculture and forest management. Well trained men are needed for this work, both technicians and leaders in the creative features of making the forests and their dependent industries of service to the state.
''Southern boys are needed for forestry work in the South. The fact that there are many-too many -forest schools in other parts of the country does not lessen the need of at least one strong school in the South. It is especially the case that the South needs foresters who have been brought up in the region and are familiar with local conditions, points of view, and traditions of the people. Foresters brought up and trained in the North have often failed in their work in the South, not because they were not competent professionally but because they were unable to fit in with the environment and often did
97

not fully understand the people with whom they had to carry on their every day work.
"I would not advocate that there be a professional forest school in each state in the South. That would not be justified. I would like to see a strong school which would render a service regionally as well as within the state where it is located. Such a school is particularly needed in a state which touches the heart of the southern pine belt and has extensive industrial interests in naval stores, as well as in lumber and other forest products. In my opinion Georgia is admirably .situated for a forest school whose service would extend over a wide range of the South. \Vhether the school would meet the needs of the western portion of the South, including Louisiana, Arkansas, and Texas, may be a question, but its location is such as to serve the eastern portion of the South.'' The Survey Committee concurs with Dean Graves in his recommendation for the continuance of the work in forestry at the University of Georgia.. It does not appear to be desirable at this time to attempt to increase the size of the student body or to develop specialization in the branches of forestry education. However, the faculty should be increased in size, the library resources should be strengthened, more adequate housing should be provided, and research in the forestry problems of the state should be developed. The present budget is entirely inadequate. It should be increased to three or four times its present size in order that the work may be developed on the basis and to the proportions its importance in the state justifies.
Chapter III has been devoted to a discussion of the institutions that should be continued as members of the
98

University System. In this chapter, the functions of the several institutions whose cQ;1tinuation has been recommended have been considered. In both chapters, it
may be noted that a common element is to be found, viz.,
the reduction in facilities as represented by the number of institutions and by the types of work offered in them. The Survey Committee is convinced of the importance to the state of this change in emphasis. The state has so many institutions offering such diversified programs that all suffer in consequence. As a result, even the leading institutions-the University of Georgia, the School of Technology, and The Georgia State College for Women-have not had the financial support desirable.
Possibly, if more funds had been available in the past, the result would have been even more duplication of effort. There is no need for this to happen since there is now one Board provided with an executive officerthe Chancellor. The activities of each institution should be restricted in accordance with the suggestions made in this report, and further restrictions .should be made if study shows that superfluous activities are being conducted by any institution. Some suggestions have been made for the strengthening of certain phases, such as forest education. The mention of these particular phases should not lead to the conclusion that they are the only ones that need to be strengthened. For large numbers of institutions with great diversity of offerings, fewer institutions with limited offerings should be substituted. Emphasis should be placed on quality.
99

CHAPT:ltR V
MISCELLANEOUS PROBLEMS
The organization of the Board of Regents and its functions, the institutions that should be continued as members of the University System, and the allocation of the functions to the remaining institutions have been considered in the preceding chapters. During the progress of the Survey, numerous other questions arose. Many of these are discussed in the complete reports submitted by the specialists. Some problems are so generally prevalent in the institutions in the University System and of .such importance that they are brought together in this chapter.
Nepotism Nepotism has found its way into some of the institutions to a surprising degree. In one relatively small college, the president had three members of his immediate family on the pay roll. As rapidly as it can be done without serious hardship on the individuals concerned, the most flagrant instances of nepotism should be eliminated.
Summer Schools The Survey Committee made a study of the work of the summer schools that wre a part of the University System during the summer of 1932'. The data supplied by the institutions regarding their summer schools and the observations made at the time of the visits to the sessions lead the Survey Comniittee to make the following recommendations: 1. The number of summer schools should be materially reduced. It .seems unnecessary to conduct summer schools at more than six or seven centers. In determining the centers at which schools are to be maintained, considera-
100

tion should be given by the Board of Regents to the work of the private institutions of the state.
2. The Board of Regents should make provision for the financial support of the summer schools and not expect them to be entirely self supporting.
3. The educational standards should, on the whole, be materially raised.
Possibilities for Strengthening
The co-ordination of institutional effort that is made possible by a single governing board and the chancellorship opens the way for strengthening many phases of the work of the several institutions which was not readily possible when each institution was independent of the others. It will be unfortunate if these opportunities are not utilized.
A few of the possibilities are mentioned below: 1. In some of the institutions visited by members of the Survey Committee the student records were found to be in good shape as far as they went. In others they were incomplete, inaccessible, and kept in a clumsy manner. While each institution will need to adapt its records to its peculiar conditions, much would be gained if some study were given to what is desirable in the way of records and the best procedures for keeping them. A committee representative of those concerned with these problems might well study them for the purpose of finding the best solutions, and it should make available to all the institutions of the University System the results of its study. Experience may lead to the conclusion that the same forms may be used in more than one institution. This would result in some economy.
2. The library facilities are inadequate in every institution of the University System. In one or two instances,
101

it is just short of travesty to.._call the facilities that are provided libraries. The common reply to this condition wa.s ''shortag-e of funds.'' This is not the complete answer, as in some of the institutions funds have been expended on less important elements in a prog-ram of education than libraries. The inadequacy was frequently due to a failure on the part of the administrative head to recog-nize the need for adequate printed resources in the form of books and journals. Furthermore, some of the libraries are poorly administered. Some competent librarian from one of the institutions should make a visit to the other institutions for the purpose of counseling with the authorities at each place regarding their library. Improvement could be made in some of the institutions with little, or no g-reater, expenditure of funds.
3. The Survey Committee has recommended that the University be made the center of home economics instruction, research, and extension for the state. Instruction in the field of home economics will be offered at several other institutions but, on the whole, the most competent staff should be maintained at the University. This staff should be in a position to assist in the development of the work in other institutions. Co-operation in the development of curricula and prog-rams of instruction in several fields of knowledg-e will undoubtedly prove practicable.
4. The Survey Committee has recommended that in all four-year institutions, except the .School of Technology, the first two years of the four-year curricula should be devoted to general education. This recommendation is in harmony with the g-eneral trend in hig-her education by which specialization is being- delayed until the end of the junior-colleg-e period. This recommendation holds whether or not the specialization is represented by the work of a professional school or in some academic field.
102

The character of this junior-college curriculum is a subject with which, except the ~chool of Technology, all of the four-year institutions, the two-year teachertraining institutions which also offer a general juniorcollege curriculum, and any junior colleges that may be continued as members of the University System are concerned. This curriculum should be substantially the same in all of the institutions. It should be developed co-operatively.
The procedures that have been suggested in solving the foregoing questions may be applied to many others now present and to others that will arise in the future. The efforts suggested should result in an improvement of conditions so far as the specific problems are concerned, but an even gTeater result will be the final outcome. The faculty of each institution will in time come to realize that its institution finds its largest opportunity for useful service as an integral element of the University System.
Publicity
Instances were found in which institutions of the University System, with nothing distinctive in kind or quality of work, were making an effort by their publicity to reach students over the entire state. This is unnecessary and wasteful. The Chancellor's office should prepare material designed to furnish information regarding the institutions of the entire University System. This material may be widely disseminated without great expense. The Board of Higher Education in Oregon follows this practice. The announcements need not displace the catalogues of the individual institutions, but they will supply a bird 's-eye view of what the state-supported institutions have to offer. The prospective student then
103

has a basis on which to decide ~s to the catalogue he wishes to have an opportunity to study. It seems prob..: able that the aggregate -cost of printing can be reduced by this procedure.
The appearance of practically all of the catalogues could be materially improved with no increase in expenditure. A few are unnecessarily bulky, others are bad typographically, and some are poorly organized.
Inbreeding in the Faculties
The breadth of view that characterizes the work of an institution is undoubtedly influenced by the range of institutions represented in the training of the faculty. The Tables IV, V, VI, and VII, which follow, are worthy of study in connection with the question of inbreeding.

Institutions from Which Faculty Members Received Degrees Table IV Franklin College

Training
Bachelor's degree from University of Georgia
Bachelor's and master's degrees from University of Georgia
Bachelor's degree elsewhere, master's degree from University of Georgia
No degree from University of Georgia (excluding honorary degrees)
Bachelor's, master's, or both degrees from University of Georgia, Doctor's degree elsewhere
Total number of teachers

! I Training of Teachers Training of Teachers Excluding Instructors Including Instructors

I Number I Percentage I Number 1 Percentage

I I I I 28

46.94

25

42.87

I I

I 13

26.53

I I

14 I

23.73

I

I I 3

6.12

I

6 I 10.17

I I I I 23

46.94

28

47.46

I I I I 9

18.37

9

15.25

I I
I 49
I I

I
I I 59

104

Table V College of Agriculture

Training
Bachelor's degree from University of Georgia
Bachelor's and master's degrees from University of Georgia
Bachelor's degree elsewhere, master's degree from University of Georgia
No degree from University of Georgia (excluding honorary degrees)
Baehelor's, master's, or both degrees from University of Georgia, doctor's degree elsewhere
Total number of teachers

\IETxrcaliundininggoIfnTsteraucchteorrss

i

Training of Teachers Including Instructors

I Number I Percentage I Number I Percentage

I I I I 24

52.17

25

53.19

l l )

) 7

15.22

7

14.89

I I I I 2

4.35

2

4.26

I 20 I 43.48 II 20 II 42.55

I I I I 2

4.35

2

4.26

I 46 I

I 47 II
I

Table VI School of Technology

Training
Bachelor's degree from School of Technology
Bachelor's and master's degrees from School of Technology
Bachelor's degree elsewhere, master's degree from School of Technology
No degree from School of Technology (excluding honorary degrees)
Bachelor's, master's or both degrees from School of Technology, doctor's degree elsewhere
Total number of teachers

( Training of Teachers~ Training of Teachers Excluding Instructors Including Instructors

I Number I Percentage I Number I Percentage

I I I

I

17

20.73

25

I

I

20.83

I I I

6 I

7.32

I

I

8

6.67

I I I J

6 I

7.32

I

7

5.83

I I I

59

71.95

\

I

88

73.33

l I I ) -

--

- --

I

I

I

I I 82

I I 120

105

Table Vll The Georgia State College for Women

Training*

I I Training of Teachers Training of Teachers
I Excluding Instructors Including Instructors

Bachelor's degree from The Georgia State College for Women
No degree from The Georgia State College for Women (excluding honorary degrees)
Total number of teachers

I Number I Percentage I Number I Percentage

I I I I 15

28.85

21

35.0

I 37

71.15

39

65.0

I I I I

I I 52
I

I I 60

I

I

* No master's degrees are given at this school

Adtninistmtion of Student Personnel
Members of the Survey Committee, as they visited the institutions of the University System, were impressed with the inadequacy of the student personnel activities that were conducted at most of the institutions. Dr. A. J. Brumbaugh, of the University of Chicago, made a study of this phase of the work in six of the institutions of the University System. His complete report, which has been sent to the Board of Regents, contains many constructive recommendations regarding each institution which he visited. In addition, the following general suggestions, which he found applied to the institutions included in his study, in the opinion of the Survey Committee, have possibilities of usefulness throughout the entire University System. They are recommended as guides to the Georgia institutions in their efforts to organize their activities in the field of student personnel.
'' 1. There is a consciousness, in most of these institutions, of the need for a more effective administration of students and student affairs.

106

"2. Several institutions have taken commendable first steps toward the develop~ent of a more adequate plan for the administration of students, but none of them has a program which can in any sens"e be considered entirely adequate either in scope or in organization.
"3. Practically every institution in this group visited has resources in faculty personnel which if well organized will make possible the development of a much more satisfactory student personnel program with little or no additional expense.
"4. While certain other major reorganizations are in process, the chief administrative officers should give special attention to the organization of well co-ordinated programs for the administration of student personnel.
"5. No general plan of organization can be outlined which will fit every institution. A program best adapted to each institution must be developed in the light of the needs and the personnel available for its administration.
"6. It may be impossible under present financial conditions to organize at once an adequate student personnel program in each institution, but the program should be fully outlined and planned in such a manner as to put into effect at once the more urgent provisions and to gradually develop those phases which are essential but which for financial or other reasons cannot be realized immediately.
"7. The first step in planning such a program should be to make a careful self-survey of all phases of student activities and of the needs for student counseling. Then a general plan of organization may
107

be formulated, and key perso~ on the faculty or in the administration may be selected to perform specific functions. '' 8. There are certain fundamental functions with reference to the administration of students which are common to practically all of the institutions; among them are: the administration of tests of general intelligence, of placement tests, of reading tests, and the development of a satisfactory system of centralized records. It would seem wise for the institutions to make a co-operative approach to the performance of these common functions.
'' 9. In practically all of the institutions visited, a large number of rules governing student life and activities are in effect. Steps should be taken, at once, to reduce the emphasis upon government by rules and instead to develop a sense of responsibility on the part of each student. This change will eliminate much petty discipline and will demand more actual counseling of students.''
Retirement Provisions There are a number of instances in the University System in which faculty members and administrators have reached the period of life at which they should retire. At least some of these persons are in such a financial position that the loss of their salaries at this time would work a genuine hardship on them. As a result of this situation, the University System is under obligation to continue them on the faculties in which many of them have had long periods of service. Unfortunately, the state of Georgia at this time is not in a financial position to provide a plan of general retiring allowances. The Survey Committee recommends to the
108

Board of Regents that consideration be given, as soon as financial conditions will penmt, to the establishment of a contributory plan of retiring allowances.
Income from Housing and Dmin,g Facilities
A feature of the business management of the branches of the University System which deserves special mention is the fact that the dormitory and dining facilities are sometimes used as sources of income from which capital outlays have been made for the expansion of the institutions. The policy of developing a building program from the surplus income from student housing and board is of doubtful wisdom. The state can adopt a more intelligently planned program of higher education if it faces explicitly the problem of equipping those institutions which it should maintain and charges such fees as are demanded by its program. As it is, the state, in fact, is covering up by the procedure described above a part of its exactions from students. This policy is unfortunate, and it leads to a lack of proper balance among its various institutions.
The Survey Committee recommends that a system of financial records be established, at each institution, which will give accurate information regarding the cost of maintenance of the housing and dining facilities and that these facilities be made available to students as nearly as practicable at cost. No institution should be permitted to aecp.mulate considerable balances from these sources and then use them, as has been done in the past, for institutional development. If the University System must have more financial support than is forthcoming from the state, it should charge such fees as may be necessary to carry out its educational program.
109

Athletic Organi!rltion

In the op1n1on of the Survey Committee, the administration of
athletics in the units of the University System should be more closely
integrated with the general administration of the institutions than is
true in a number of instances under the, present conditions. At the School of Technology, the athletic organization conducts its activities in almost complete independence of the administration of the school. No sound justification can be found for this independence of athletic control.

APPENDIX A

Class Size

Fall Term, 1932

Location Athens Atlanta Miliedgeville

Name of Institution
Franklin College College of Agriculture State Teachers College
School of Technology
The Georgia State College for Women

I I I Percentage ot Percentage of Percentage of classes with classes with classes with

I 0 Ol' less students

11 to 20 Ftudents

20 or less students

I

20.5

I

26.6

I

47.1

I

44.6

I

42.4

I

87.0

I

19.3

I

33.3

I

52.6

I

14.3

I

I

39.5,

I 53.8
I

I

I

18.2

I

29.9

I
48.1
I

Statesboro Tifton Valdosta Bowdon Dahlonega Savannah Albany'

South Georgia Teachers College

I

11.2

I Georgia State College

16.3

for Men

I

I Georgia State Woman's

21.0

College

I

I

Bowdon State Normal I

68.6

and Industrial College I

I North Georgia College

23.4

I

Georgia Industrial

I

36.7

and Normal College

I

Georgia Industrial and Normal College

I

I

34.3

I

I 18.3
I
l
I 32.6

'
I

I

23.9

I

I 12.5

I

I 31.3
I I
32.6

45.7

29.5
I

48.9
\

I

I

44.9

I

I

I

81.1

I

I

I

54.7

I

I

I

69.3

I

I 80.0
I

Forsyth'

I School of Agriculture
and Mechanic Arts I

I

Americus:!

State Ag,ricultural

I

and Normal Colleg~

I

Barnesville2 Georgia Industrial

I

College

I

Cochran:!

Middle Georgia

I

College

I

I

Douglas:!

Scuth Georgia

I

State College

I

------
40.4 2.0 5.5

14.3

I 18.8
I

I 28.0

I

I

I

11.1

I

I --

I
I 14.3

I

I

59.2

I

I 30.0
I

I,

16.6

I

Classes in the law school, physical education, health, music, expression, library science, practice teaching, and non-credit review courses are not inc]uded.
'Three-year College. 2Junior College.
llO

APPJ~NDlX B Number Public-Sehool Tcaeher~ :B~mployed, Number Included m This Study, and Estimated Number New
Teachers Needed Annually

Number employed
Number reporting
Percentage
New teachers reporting Estimated new teachers Estimated new teachers basis median experience

I

WHITE

NEGRO

I

I I Elementary High School) Elementary High School TOTAL

I
II 10621

I
I 3690
I

I
I 5106

I
I 400

I
119817
I

I 3745

I I 1514 I

I 1854

I 2!;5

I
I 7368
I

I
I

II 35.26

I 41.03

I 36.:ll

I 63.75 I 37.1H
I

I 247

I llH

I 9B

I I 22 I

I I 4H6 I

I 701

I
I 288

I 273

I 35 i

113025
I

I 1770
I

I 615

I 72D

I I I 67 I

I
I 3181
I

APPENDIX C Training of "White Elementary-Sehool aml High-Sehool
Teaehers in Georgia

Amount of Training-

I Number of Teachers
I Elementary I High School

Less than high school

,--~~_1

30 I

2

High-school g-raduate

I

984 I

56

One year college oi;normal"-~--~--39~8--J---~3~8--~

Two years college or normal Three years college or normal

~---~f44o

I

:115

I

lHU -

T--107>____

Bachelor's degree

---~----537~~--f~" -%4-~--

Master's degree Total

I

16 I

128

I 3720 I 1477

lll