In an Attempt To

DOCIIMFNT RESVMF ED 021 523 JC 680 261 By- Kroepsch, Robert FL, Ed; Buck, Dorothy P., Ed PARTNERSHIP FOR PROGRESS THE REPORT OF A LEGISLATIVE WORK CONFERENCE ON HIGHER EDUCATION IN THE WEST (5TR BOULDER, DECEMBER 3-5, 1967). Western Interstate Commission for Higher Education, Boulder, Cola Pub Date Mar 68 Note- 67p. EDRS Price MF-W.50 HC- $2.76 Descriptors-CONFERENCE REPORTS EDUCATIONAL FINANCE, *EDUCATIONAL LEGISLATION *EDUCATIONAL PROBLEMS *EDUCATIONAL RESEARCHERS *HIGHER EDUCATION *JUNIOR COLLEGES STATE LEGISLATION In an attempt to (1) provide a forum for the discussion of critical problems relatedtohighereducation in theWest,(2)strengthenunderstandinci and communication among western legislators,publicofficials, and members of the educational community, (3) assist in the dev lopment ofa priority list of program areas of concern in which the Western Interstate Commission for Higher Education (WICHE) might be helpful, (4) present facts, share ideas, and seeknew solutions to problems, and (5) gain insights, widen horizons, and learn from theexperiences of colleagues in other states, a legislative work conference with representatives from 13western states was called. In one of five majOr addresses, Governor John Love of Colorado urged that WICHE include the training of specialists in government and researchas a phase of its operation. John Dale Russell discussed higher education finance, calling attention to the need for educators to use greater efficiency in theprocess of higher' education and for legislators to increase the financial support of higher educationin-- their respective states. Robert E. Smylie made the point that education shapessociety. He appealed to the universities to provide public administratorsto help solve the problems of society. Jack M. Campbell spoke ofmajor concerns of Americans in their expectations of higher education. James L. Wattenbarger outlined trends, issues, and problems related to the development of junior colleges (DC) .-2;X:':""4e.iig97117C9IPIWPIP-

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ARTNERSHIP for PROGRESS

The Report of a LEGISLATIVE WORK CONFERENCE ON HIGHER EDUCATION IN THE WEST Held December 3-5, 1967 WICHE is a public agency through which the people of the West work together across state lines to expand and improve education beyond the high school.

HISTORY: was created to administer theWestern Regional Educa- tion Compact, which has been adopted by the legislatures of all the 13 western states; was formally established in1951, after ratification of the compact by five state legislatures; program activity began in 1953.

ORGANIZATION: is composed of 39 commissioners, three from each state, appointed by their governors; they servewithout pay; is served by a small professional staff, supplemented by consultants, councils, and committees.

PURPOSES: seeks to increase educational opportunities for western youth; assists colleges and universities to improve both their academic programs and their institutional management; aids in expanding the supply of specialized manpower in the West; 'helps colleges and universities appraise and respond to changing educational and social needs of the region; informs the public about the needs of higher education.

PROGRAM AND PHILOSOPHY: serves as a fact-finding agency and aclearinghouse of information about higher education, and makes basic studies of educational needs and resources in the West; acts as a catalyst in helping the member states work out programs of mutual advantage, by gatheringinforma- tion, analyzing problems, and suggesting solutions; serves the states and institutions as an admin;strative and fiscal agent for carrying out interstate arrange- ments for educational services; has no authority or control over the member states or individual educational institutions; it works by building consensus, based on joint deliberation and the recog- nitisn of relevant facts and arguments.

FINANCES: is financed, in part, by appropriations from the member states of $15,000 annually; nine states also contribute $7,500 each to participate in a regional mental health program; receives grants for special projects from private foundations and public agencies; for each dollar provided by the states during the past few years, WICHE has received more than four dollars from non-state sources; in the past 12 years, grants have exceeded $7,000,000. ' .1.4*M.. Ye,

U.S. DEPARTMENT OF HEALTH, EDUCATION & WELFARE

OFFICE Of EDUCATION

THIS DOCUMENT HAS BEEN REPRODUCED EXACTLY AS RECEIVED FROM THE

PERSON OR ORGANIZATION ORIGINATING IT.POINTS Of VIEW OR OPINIONS

STATED DO NOT NECESSARILY REPRESENT OFFICIAL OFFICE Of EDUCATION

'POSITION OR POLICY. PA S' 'IP for PROGRESS

The Report of a LEGISLATWE WORK CONFERENCE ON HIGHER EDUCATION IN THE WEST Held December 3-5, 1967

Edited by Robert H. Kroepsch and Dorothy P. Buck

WICHE

Western Interstate Commission for Higher Education University East Campus Boulder, Colorado 80302 March, 1968 MONTANA COMMISSIONERS *Edward W. Nelson, Executive Secretary, The Mon- As of March, 1968 tana University System Richard S. Buker, M.D., Chester ALASKA Paul Working, Livingston 1 *Mrs. Edward C. Sweeney, Juneau Mrs. Alfred J. Lomen, Fairbanks NEVADA Dr. William R. Wood, President, Universityof Alaska *Dr. Juanita Greer White, Boulder City Fred M. Anderson, M.D., Reno ARIZONA Dr. Thomas T. Tucker, Chairman of School Ad- *Dermont W. Me lick, M.D., Coordinator,Regional ministration, Department of Education, Universityof Medical Program,College of Medicine, University of Nevada Arizona Dr. Richard A. Harvill, President, Universityof NEW MEXICO Arizona *Walter F. Wolf, Gallup Alexander A. Raisin, Phoenix Dr. Tom L. Popejoy, President, Universityof New Mexico CALIFORNIA Keen Rafferty, Albuquerque *Dr. W. Ballentine Henley, Provost, CaliforniaCol- lege of Medicine, University of California at Irvine OREGON Dr. Rita R. Campbell, Archivist & ResearchAssoci- *Mrs. Thomas Scales, Portland ate, Hoover Institution, Stanford University Dr. Roy E. Lieuallen, Chancellor,Oregon State Dr. William J. Teague, Vice President,Pepperdine System of Higher Education College FrankJ.Van Dyke, Medford

COLORADO UTAH *John G. Mackie, State Representative, Longmont *Dr. Merle E. Allen, Director, CoordinatingCouncil Dr. William E. Morgan, President, Colorado State on HigherEducation (Vice-Chairman) University Peter 'W. Billings, Salt Lake City Dr. Kathryn M. Smith, Dean, School of Nursing, David L. McKay, Salt Lake City University of Colorado WASHINGTON Uni- HAWAII *Dr. Glenn Terrell, President, Washington State *Dr. Frederick P. Haehnlen, College of Education, versity University of Hawaii Dr. Charles E. Odegaard, President, Universityof George Goto, M.D., Honolulu Washington Seiko Shiroma, Kahuku Plantation Gordon Sandison, StateSenator, PortAngeles (Chairman) IDAHO *Dr. Ernest W. Hartung, President,University of WYOMING Idaho *Francis A. Barrett, M.D., State Senator, Cheyenne Dr. William E. Davis, President, Idaho State Univer- Dr. William D. Carlson, Presiclent,University of sity Wyoming Martha D. Jones, M.D., Boise Frank C. Mockler, Lander *Members, Executive Committee

, FOREWORD

1 Partnership for Progress has been selected as the title for this collection of papers presented at WICHE's fifth Legislative Work Conference on HigherEducation in the West. It is obvious to those who are concerned about the future that aviable partnership between educators and legislators must exist. WICHE feels a strongobligation to nurture this partnership. Legislators and educators look at the educational process fromdifferent points of view. Their responsibilities are different. Their motivations aredifferent. Their per- sonality structures may be different. Certainly their modusoperandi are different. Often they appear to be in conflict with one another. But, by the verypositions they hold, members of both groups have committed themselves to advancingthe social, economic, cultural, and educational climate of their state. Thus,if progress is to be made, they must participate as partners. The Western Interstate Commission forHigher Educationworking under an interstate compact and composed of educators,leiislators, and lay leadersis in a unique position to improve the channels ofcommunication, to encourage thoughtful dialogue, and to raise the level of understanding of thefrustrations and of the problems of these two groups. As a neutral convener,WICHE sponsors many meetings between governmental officials and educators, betweenrepresentatives of institutions in various states, between the academicianswho prepare specialized manpower in colleges and universities, and the practitioners in the field whohire the graduates of these programs. This conference on selected problems inhigher education was attended by 175 participants representing many aspects of highereducation and of government. The people of the West are deeply indebted to thosepublic-spirited citizens who were willing to contribute their time, energy,and wisdom to take part in such an effort. Both their evaluation sheets and letters suggest to the Commissionthat it should mount this kind of program on a regular basis. To Jerome K. Murphy, Special Assistant to theAssistant Secretary for Legislation of the Department of Health, Education, andWelfare, go special thanks for his pre- conference briefing on the current status of highereducation bills in the Congress. His articulate presentation and frank statements were mostinformative and helpful. To the Commissioners and staff members, whoserved in a variety of roles to contribute to the success of the sessions, we are mostgrateful. To Dorothy Buck and Lee Gladish of the WICHE staff, I should like also to express mypersonal appreciation for their valuable assistance in putting this reporttogether. This publication has been distributed toall legislators, college and university presidents in the West. We trust it will help stimulate and encouragethe dialogue and strengthen the partnership for progress. Robert H. Kroepsch Executive Director, WICHE Boulder, Colorado March 1968

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JERRY MURPHY -

4_ PARTNERSHIP FOR PROGRESS: COMMENTS OF WICHE'S CHAIRMAN

beyond the high school and which are One of the most urgent problems, that of mutual concern to all who are aware of finance, was discussed by Dr. John of our changing educational and govern- Dale Russell, authority on higher edu- mental relationships:the problems of cation finance who has directed and finance, public service, community col- participated in maj or studies and sur- leges, and other current concerns of the veys in higher education. public.These problems are and will Dr. Russell said that of the four main continue to be main concerns of the sourcesof fundsfederal, state,en- West's decision-makers in higher educa- dowments, and giftsonly state appro- tion and in government. priations are really significant at this The objectives of this fifth legislative point. He stated that endowments, gifts, work conference were: (1) to provide and federal programs cannot be in- a forum for the discussion of critical creased in sufficient amounts to close problems related to higher education in the gap between what is needed and the West:(2) to strengthen under- what is available. standing and communication among Participants agreed in general with western legislators, public officials, and his suggestions for increased efficiency, members of the educational community ; economizing, consolidating, and other- (3) to assist in the development of a wise making more efficient the process priority list of program areas of con- of higher education as one way of meet- The problems higher education and cern in which WICHE might be helpful; ing the higher cost brought on by larger government are facing today are indeed (4) to present facts, share ideas, and enrollments and demands for increased critical and important. They are most seek new solutions to problemsboth academic programs. Dr. Russell stirred frustrating and are difficult of solution. old and new; and (5) to gain insights, a bit of controversy when he said, "If a But there is a solution. There has to be widen our horizons, and learn from the [state] scholarship system seems advis- a solution because the futureof every experiences of our colleagues inthe able, it should be treated as money spent state, of the western region, and perhaps other states. for welfare, not for higher education." of mankind hinges on their resolution. The ultimate goals of this conference He assuredlegislatorsthat, "You These problems include financing high- are to provide, through regional co- won't lose many votes for re-election if er education, areas of cooperationbe- operation, the finest resources in talent you use every means at your disposal tween state government and higher edu- and programs which will assist in im- for seeing to it that higher education is cation, and issues and problems related proving education beyond the high adequately supported in your state." He to community colleges as well as to school in the West. We will disseminate added that he had never seen or heard public service. the significant findings to college ad- of a state or a nation that had gone ministrators, faculty members, and pub- bankrupt because it spent too much of WICHE is concerned about these vital lic officials concerned with the broad its resources for the support of higher problems. As a public agency through and fundamental issues in higher edu- education. which the people of the West work to- cation in the West in order to meet the Dr. Robert E. Smylie, former govern- gether across state lines to expand and challenge of the times and to stimulate or of Idaho and practicing attorney, improve education beyond the high further study in underdeveloped areas made the point that education shapes school, WICHE is committed to serve of research on higher education and society. He appealed to the universities the needs of the West.This West is thus to bring about indicated economic, to provide public administrators to help changing in significant ways. social, and educational changes. solve the problems of society, asking Consequently, WICHE sponsored its We believe that the channels of com- that government, industry, and univer- fifth legislative work conference, one munication between the states of the sities abandon their separateness and of a series which have attempted to pro- West must be broadened and deepened, work together. duce greater understanding between state and this can come only if we get to know He listed a number of reasons why governments and the systems and insti- each other ancl engage in frank discus- universities and colleges are in a posi- tutions of higher education in the 13 sion of our common problems. Conse- tion to help build a responsible society: western states. quently this conference was called to at- they have staff, facilities, and prestige; This, WICHE's fifth legislative work tack our common problems in an atmos- they have the human talent required for conference, was held in response to the phere of mutual respect for and under dealing with the problems of a society expressed need for focusing on these standing of each other's responsibilities as distinguished from the problems of problems which are related to education and goals. an enterprise; they have disciplines of iv objectivity and are committed to the extension of the compact betweenour offered to western residents whilewe search for new knowledge. western states in education to include continue to face the real and necessary Dr. James L. Wattenbarger,com- the training of specialists ingovernment limitations of available funds. munitycollegeauthority,outlined and governmental research. We might We believe that this wasa worthwhile trends, issues, and problems relatedto even consider it as a University of the conference, that it furthered understand- the development of these junior colleges West that woulduse the physical plant ing and cooperation.After this con- which are tuned to the needs of the and faculties ofour present institutions. ference, we participants went back to community and are theanswer for many From each of these would be made avail- our offices, to our businesses, to our students who need to improvean out- able areas of specialization for thestu- campuses, and to our jobs, and the moded skill, learn anew one, or supple- dent. They would be trained in law, problems that we had left, to attend the ment their cultural background. national resources, finance, social prob- conference, were still there. We believe "ThePublic'sCurrentConcerns" lems, economics, government, andmany that, because of the fact thata group about higher educationwere spotlighted other closely associatedareas with em- of us sat down together at thiscon- by Jack M. Campbell,governor of New phasis on the unique problems of the ference, that we exchanged ideas, that Mexico from 1963 to 1966 andcur- West. From this pool of knowledgewe we listened to other people's viewpoints rently director of the Instituteon State could draw the helpwe need in govern- and heard new ideas andnew concepts, Programming for the 70's at the Uni- ment tr.// make decisions and initiatepro- we were better able to solve our own versity of North Carolina, Chapel Hill, grams." Froblems. We believe thatwe are com- NC. ing closer to solving the critical prob- In combining the efforts ofgovernors, He spoke of major lems facing the West. We must ifwe concernsof legislators, and educators in the West, Americans in their expectations in re- are to serve the people we rcA,resent. WICHE is continuinga partnership gard to the competence and influence of On the behalf of the Commissioners which will help us meet theenormous and the staff of WICHE, allowme to higher education. problems of spiraling college enroll- Looking to the future, a significant extend our most heartfelt appreciation ments. Planning together permitsus to to all who gave up so much of their suggestion was made by Governor Love work for rational growth in both the of Colorado "...that we consider an personal time to address themselvesto quality and quantity of education being these problems. Gordon Sandison WICHE Chairman

OWN" ICHE

CONTENTS

1. A GOVERNOR LOOKS AT HIGHER EDUCATION, JOHNA. LOVE 1 2. THE FINANCE OF HIGHER EDUCATION, JOHN DALERUSSELL 5 3. THE ACADEMIC COMMUNITY AND PUBLIC SERVICE,ROBERT E. SMYLIE 21 4. THE PUBLIC'S CURRENT CONCERNSABOUT HIGHER EDUCATION, JACK M. CAMPBELL 35 5. THE DEVELOPMENT OF COMMUNITY COLLEGES: TRENDS, ISSUES, PROBLEMS, JAMES L.WATTENBARGER 45 PART ICIPANTS 58

V :

Section I A GOVERNOR LOOKS AT HIGHER EDUCATION John A. Love*

ing search for the role of higher educa- Ournewlycreatedcoordinating tion and, if my crystal ball doesn't get agency, the Co lomlo Commission on smoggy, I hope to see for you some sug- Higher Education, has referred to the TI gested guidelines for the future of high- system as a three-legged stool, one leg er education from a politician's vantage for the universities, one for the general point. colleges, and one for the community or junior colleges. Each leg must be even THE NEED TO REAPPRAISE so the stool won't tip, but each represents RELATIONSHIPS a special level of education to meet a particular need in our comprehensive The theme of this conference is High- system. ,7- er Education and the States. The states, as a necessary, dynamic, and vital ele- Community Colleges ment of the federal system, must reappraise their relationships with education The newest leg is the community col- on all levels. Not only must we look at lege system which was officially acknowl- the financing of education and the avail- edged by the General Assembly as a ability of education, but also at the new member of the state system just this uses of education. Yes, to paraphrase year. We have had excellent local junior and reverse President John F. Kennedy, colleges for many years, but they were we must think not only what we can do independent two-year institutions within for education, but what education can do a district. Part of the reluctance to estab- It is a pleasure for me to welcome for humanity. lishing state junior colleges was fear of you to Colorado and to acknowledge The role of higher education is basic- discouraging this local effort and sincere our pride in hosting the fifth legislative ally the search for knowledge and the doubt tha they should or could serve a work conference on higher education in dissemination of that knowledge to stu- state purpose. Colorado has, however, the West. The Western Interstate Com- dents. But knowledge itself is not wis- acknowledged a state purpose by giving mission for Higher Education are "home dom. Wisdom is the use of knowledge financial aid to these schools. The new folks" to us, but they are certainly not to make the right decisions. The column- legislation gives each existing commun- prophets without honor at home as you ist and author, Walter Lippmann, stat- ity college the option of joining the here. can tell from the attendance ed in a paper for the American Council state system or remaining independent. You were most gracious in asking me on Education that knowledge is made in- Ibelieve thatallof these two-year to keynote this conference and share to wisdom when what is true about the schools, both the existing ones and the with you a governor's view of higher nature of things is reshaped to the hu- new ones to come, will furnish a bul- education. A recent New York musical man scale and oriented to the human wark for occupational education in this show was titled "On a Clear Day You understanding, to human need and to state and offer chances for liberal edu- Can See Forever," and appropriately, human hope. As a governor, I look to cation to students who could accept that when I look at. higher education, I can education to help find the knowledge to chance nowhere else. I can see in it all of the see forever. reshape government to the human scale, four problem areas you are considering, to orient it to human understanding, to General Colleges finance, public service, community col- human needs, and to human hopes. leges, and the concern of the public. I How do we go about this great under- Our gederal college system is made hope will be a never end- can see what I taking? up primarily of four-year colleges that were state normal schools. Three new A LOOK AT THE colleges have been added in recent years, *Govemor of Colorado from 1963 AVAILABILITY OF EDUCATION and all of them are oriented toward lib- to the present. Chairman of the Re- eral arts, business, and teacher training. publican Governors' Conference and In Colorado we have evolved an ex- They are located throughout our state Chairman of the National Governors' cellent system of higher education, firm- and perform an additional service by Conference Committee on State Plan- ly anchored to local district primary and furnishing special educational needs to ning. secondary schools of high quality. their community..

c Universities tracts for special services and sends its its Experiment Station and Extension Finally, we have two great public uni- employees back for additional training. Service, carried the results of its re- versities and a university-type college State governments seek industries and seatch to the farms and ranches of Colo- which specializes in mineral education. encourage them to grow. Industry nur- rado and helped apply those results for These schools are certainly statewide in tures this growth with education, and a better agriculture and livestock indus- character, even national and interna- so the three see a path ahead that they try for our state and region. tional. They serve many undergradu- must Aare. Dean Walter Beggs of the ates but also have outstanding graduate University of Nebraska told the Edu- Finding Solutions to Urban schools. Their responsibility in research cation Commission of the States in Den- Problems is tremendous. Here again, even world ver recently, "A modern program of edu- service is not a restriction, for their ex- cation must produce a degree of excel- Since the 1940's and 50's, we have perimentswillhelp carry man and lence that will equip its output at all watched the western states shift from his instruments into the universe. levels to live in an environment of com- rural populations to urban populations. plexity and change, the dimensions of EDUCATION, GOVERNMENT, As our people moved to the metropolitan AND INDUSTRY SHARE which are unseen at any given moment." areas they developed new problems, In my view we are seeing the beginnings INTERESTS many of which went begging for solu- of a coalition between education, busi- I relate our system to you and review tion. One of the greatest challenges to ness, and government which will enable its functions to gain some perspective on state and local governments today is our citizens to move ahead in this dy- the view of higher education as I see it. finding solutions to urban problems. namic society we have built. You are already aware of coritinued attempts by government and those who SUGGESTIONS FOR ACTION Many of the major sources of concern for our people today are centered in the serve in government to direct a role for There are those in the past and pres- education to a predetermined purpose. cities and their suburbs. Transportation ent who feel that education is not a place problems, riots, crime, air and water The establishment of a state system with for action. As I mentioned before, edu- a state purpose in itself recognizes that pollution, need for recreation, burden- cation on the higher levels seeks to find some taxes, and antiquated forms of certain functions of state government knowledge and pass it on to students. I government are some of the things we will be served by higher education. believe that a third element has already When Colorado trains teachers in special must face squarely and look courageous- enteied the picture. As the great colleges ly at solving. We in government can education and rehabilitation, these dedi- and universities conduct their research, cated people help shape the lives of no longer turn our backs on what is hap- they apply that research to the solving of pening to the greatest percentage of our handicapped citizens so that they can problems. serve a useful life. The recognition of population, our urban dwellers. We have rehabilitation is a change from the old Colorado State University has long already initiated many programs, but attitude of government which simply been an outstanding example of the land- we need help to tackle some problems. confined these citizens to institutions or grant college.Established under the gave them welfare. This is a state pur- Morrill Act, this institution has, through I would like to solicit the help of high: pose. er education to carry out a program in Another purpose for education in re- the western states that we serve. cent years is its service to industry. We First, we need some long-range plan- in government have become very com- ning to prevent further deterioration of petitive in our campaign to attract inom metropolitan areas.Let our, cities dustry to our state. We have a real on- become centersfor commerce, enter- going program in Colorado located with- tainment, education, and urban living. in a department established for the pur- We can overcome the slums and their pose.I have supplemented this by sev- related poverty by designing the physi- eraltripstoother business centers cal structures and the occupational edu- throughout the country where we can cation to give these folks a real chance meet with business leadersana sell them to lead the good life every American on colorful Colorado. Almost without must hope for. We in the West are not fail, one of their first questions is about so hidebound by tradition that we can't our educational system. Much of the change if this is needed. Education has space-oriented industry that we now an important role in this. Through re- have was attracted in a large part by our search and action, our colleges and uni- universities. versities can help design a plan and Industry itself seeks to impose addi- carry it through. Let me direct your tional responsibilities on education.It view to a few examples. devours the products of education, grad- Urban centers of education should be uates, research, and the knowledge stored DR. TERRELL-WASHINGTON established, much like our new Metro- in libraries and laboratories.It con- politan State College in Denver. If these from the so-called flight to the cities.. They are not only losing population but alio the businesses that served that population. Here is a new field of action for our land-grant colleges and universities in combination with business and government. Already the educators have started programs and we can give them our help. Making Useful Information Available to All As I said previously, when I view higher education, I can see forever. We ". have long passed the time in the life of our nation when only achosen few are educated. Each generation seesthe level of education made available to all go higher and higher. This is not to say that everyone must attend a university or college. But out of these bastionsof knowledge must come the help to make available useful learning to all. We have tried to design a system of higher education in Colorado that will serve our people and their needs. We are redesigning our governments to continue serving our people and their needs. Where there is misery and suffering, we must overcome it. Where there is crime and disregard for the law, we must stamp out that crime and turn disregard centers can join the counseling and guid- in education to include the training of into respect Where the press of popula- `ance of the underprivileged, regardless specialists in government and govern- tion or lack of it causes problems, we of tbeir level of education, with the grad- ment research. We might even consider can solve them. uate and research function of a universi- it as a university of the West that would ty-type institution, the educator, bnsi- use the physical plants and faculties of nessman, and public servant can com- our present institutions. From each of bine to not only educate and train these these could be made available areas of people, but also to find them jobs, pat- specialization for the student. Students tern a local govermnent to continue serv- would be trained in law, national re- ing them, and make available to them a sources, finance, social problems, eco- fuller measure of citizenship than they nomics, government, and many other ever dreamed possible. closely associated areas, with emphasis on the unique problems of the West. Training Specialists in From this pool of knowledge we could Government and Government draw the help we need in government Research to make decisions and initiate programs. All of the western states are conduct- This combination of educational in- ing government projects aimed at reor- stitution, scholars, public servants, end ganizing themselves and making avail- students could also begin to collect the able to the policy levels facts and figures data needed for a central automatic stor- upon which decisions canbe based. I age system. With modern comrnunica- know that each of you realizes how diffi- tion, this bank of knowledge could be cult it is to recruit the staff needed for available to the legislator, governor, or this type of research. Governors, legis- citizen no matter whel.e he is located. lators, department heads, and private foundations look long and hard for the Helping Rural Communities personnel to carry on this work. I sug- Some of our problems in the West are gest that we consider an extensionof not confined to urban areas. Many rural the compact between our western states communities have problems resulting 44' EDUCATION IS ON THE more modern way, can help in solving This conference offers yet another MOVE these problems and, in helping, will help meeting place. As you look at the prob- You are going to say, "how can he itself. Full interstate cooperation which lems of higher education in the West, ask education to take on new responsi- breaks down the traditional barriers of don't be discouraged. Education is on bility when the present ones are not state boundaries is just beginning. So is the move here and everywhere. Educa- being adequately met?" "Where will a full recognition of our responsibility tors can help government to meet the higher education fmd the faculty or the to education. The Compact for Educa- challenge of a dynamic society, and to- buildings or the money to meet its pres- tion, WICHE, legislative halls, and bud- gether they can face the next generation ent challenge, let alone new ones?" get hearings all serve as forums so that who will start the whole cycle again, but I don't think the problems can be people in government and people in edu- under better conditions than we started solved overnight. But I do believe that cation can share ideas and understand our generation. education, oriented and organized in a each others' problems.

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4 Section 2 THE FINANCE OF HIGHER EDUCATION John Dale Russell*

11111111111111v... zens. It is to this question of the "how rollments increase correspondingly. This and where" that I expect to devote most is true of every state, though the in- of the time allotted to me on the pro- creases are larger in some than in others. gram this morning. But perhaps first I The increases that have been occurring should mention bthefly the major cate- during the past 15 years have in part gories into which the need for more been caused by the earlier increase in money may be classified, and thus in a the birthrate. There are simply more way to suggest why the additional sup- young people in the population than port is requited. formerly. With the recent leveling-off In accounting terms it is customary to of the birthrate, this factor may not be classify funds into those used for (1) so important 15 or 20 years from now as current purposes and (2) capital out- it is at present. But the increased enroll- lay. A third possible category, debt ser- ment is also caused by a significant and vice, will not be discussed here for it is continued rise in the percentage of com- at present not a major problem, though petent young people in the college-age it might become more important as insti- group who want to attend college. To a tutions increase their funding of pro- considerable extent this ir a result of jects by borrowings. improved education at the elementary Funds for Current Purposes and secondary levels. Another import- Are Inadequate ant cause is undoubtedly the well publi- HIGHER EDUCATION NEEDS In the current fund budget at least cized demand of employers for college- MONEY four major circumstances contribute to educated personnel. That it is good to It will probably come as no surprise the need for higher levels of support for have more of our competent young to any member of this audience if I be- colleges and universities. Almost every- people enrolled in college is almost uni- gin with the declaration that higher edu- thing that must be purchased to maintain versally accepted today.I would not cation needs moneymore money than the present level of services in higher advise anyone to run for office tvttay on it now gets, even though the present level education increases in cost every year. a platform calling for curtailment of the of support is the highest ever in this This is not merely the result of general opportunity to attend college. As en- count6, and far beyond that of any othet inflation, though that is also a factor, but rollment increases, the cost of maintain- country in the world. The need of high- of other causes as well. For example, ing the institutions that serve these stu- er education for more financial support wages and salaries of nonacademic per- dents also increases. is hardly debatable today,atleast sonnel are steadily moving ur., in many In the third place, there is a necessity among those directlyresponsible for instances because of unionization, but in every college and university to im- operating colleges and universities. The even more because of the competition prove the quality of the present program. important question is rather how and from industry and government for the Although I am convinced that higher where the colleges and universities are same kinds of competence needed by the education in the United States today is to get the money they need for the ser- colleges and universities. The same is better than it ever has been, still it is not vice of higher educationa service that true of most items of supplies and equip- good enough. Every institution worth its is everywhere recognized as essential to ment required for the instructional and salt has goals for improving its services. the welfare of the country and its citi- research programs. A college or uni- The best and strongest of our colleges versity that tries to maintain those pro- and universities are usually the most ac- grams at the same level of support one tive in seeking means for improving their year after another is inevitably deterior- *Dr. Russell was formerly the Di- programs. The prime need is for im- ating in quality. I have yet to find any- rector of the New Mexico Board of Edu- provement in laboratories, libraries, and cational Finance. He is currently a con- body who would argue that we have too faculties; the last mentioned is, in my much good quality in American higher sultant on educational finance to the judgment, far the most important. Bet- education. Bureau of Institutional Research, Indi- ter faculties are keyed primarily to bet- ana University, and to the Educational Every year the number of qualified ter salaries and other benefits that cost Services Division, A. T. Kearney & Co., young people seeking 'admission to col- money. Though there have been praise- Inc., Chicago. leges and universities increases, and en- worthy improvements in faculty salaries in the past decade, more institutions still maintain salary scales far below the level that would represent parity inre- wards for people of equal competence, preparation, and service in other professional occupations. Finally, today a fourth situation is forcing many institutions to undertake new or expanded programs of service. The days when the words "college" or "university" meant only the meeting of the instructional needs of undergraduate students are largely gone for most institutions.Graduate student enrollments are increasing, percentagewise, much faster than undergraduate. The demands of industry and government forperson- nel with advanced degrees is to a large extent responsible for this new pressure come a prestige activity, especially in up brieflyresearch is an absolutely es- to extend into graduate degree programs the academic section ofour society. Al- sential activity today forany self-respect- or to expand such programs that have most every respectable institution of ing university and for a great many insti- already been developed.The federal higher education wants to get intore- tutions that never before did muchre- government directly encourages this ex- search. A faculty member,as he mingles search. The cost entailed is usually sub- pansion by fellowship grants to stu- with colleagues in his discipline from stantial. Income must be found tosup- dents and corresponding support grants other institutions at annual professional port this new and rapidly developing ac- to the institutions that serve them. The meetings, takes pride in mentioning the tivity, and that provided by sponsors of vertical expansion into graduate study is research he is engaged in. In some in- special projects often is not sufficient to matched by a vast horizontal expansion stitutions the annual budget for research pay the whole cost. into new fields of scholarship and new is larger than that for strictly instruc- More Money Is Needed for occupational objectives requiring col- tional purposes. Capital Outlay lege preparation. This is especially felt Seemingly generous funds are avail- When construction costs are rapidly in the demands for qualified technicians, able for the support of research, from who can be prepared with curriculums increasing, when there are more stu- the federal government, foundations, in- dents enrolled, when the quality ofpro- of two years beyond the high schoolor dustries, and private donors.Even grams is being improved, and when new less, a service peculiarly appropriateto though support from special grants from and expanded servicesare undertaken, the rapidly developing community col- outiide sources is quite often available leges. suitable provision has to be made for for research projects, this support also suitable physical plant facilities. Furthermore, universities (and even tends not to be complete, and the insti- Ten years ago, whenwe knew that en- many colleges) carry on today import- tution is often expected to make some rolhnents were probably goingto double ant functions other than the instruction contribution from its own resources. And by 1967, many ofus thought it would of students. The most notable of these if the outside support is suddenly with- be impossible to get the funds with which is research. Until relatively recent years, drawn, as sometimes happens, the univer- to construct in such a brief peiiod as research programs were confined in sity is left holding the bag, with ihe much physical plant for higher educa- most states to one or two publicly con- highly qualified (and high salaried)re- tion as had been constructed during three trolled universities and, at best, a very search personnel looking to the institu- centuries of previous history; but it has few strong, privately controlled univer- tion for a continuation of the monthly been done, and it will have to be done sities.But research has suddenly be- salary check. The point can be summed again. Borrowed funds have been the answer to a considerable extent, but there have also been generous appropriations for new buildings by state legislatures. Time doss not permitan extended discussion of the problems of financing the capital outlay requirements. I would simply hazard the conclusion that the capital outlay problem does notseem quite as acute as the problem of adequate current support. Perhaps a cynic might observe that citizens and taxpay-

.018IIMMleremnn ers are more willing to pay for fine new coordinating agency, served bya com- of the greatest sources of waste in Ameri- buildings on college and universitycam- petent professional staff, which reviews can higher education in the past has puses than they are to pay for top-grade institutional budgets and operations to been the inability to pay salaries ade- professors tocarry on their work in test efficiency and productivity in terms quate to attract the highest available these buildings. of the services for which supporting competence for faculty positions. For- WHERE TO LOOK FOR FUNDS funds are used or requested. tunately recent trends have done much Review of Institutional Budget Although my impression is that insti- to overcome this deficiency.I should One of the first places to look for tutions are now much more critical in not need to argue that, assuming equally needed funds is within the existingex- the preparation of their own budgets and careful selection, one faculty member penditure patterns of the institutions of in reviewing their own operations than at $12,000 a year produces more real higher education. In the past itwas rare formerly, itis helpful for those who education than two at $6,000 a year. In- to find a collegeor university that could must pass on requests for appropriations dustry, and even government now, recog- not reduce expenditures for some fea- to have same idea of the major areas in nize this principle and adjust their salary tures not contributing to the qualityor which waste may be found, and to know scales accordingly. adequacy of its service, in order to di- the kinds of questions that yield infor- Effective moves have been made in mation about the efficient use of institutional resources. Inasmuchas the instructional program is the major element in the budget of most institutions, it is perhaps the first place where tests of effective use of resources should be made. The chief source of waste in the 74, instructional program is the employment ^ - of more instructors thanare necessary to provide adequate service to the students attending. Questions may be asked about the average size of class at the undergraduate level, about the percentage of undergaduate classes thatare small less than ten studentsor less than five studentsand about theaverage number of students receiving degreesan- "The taxpayer is going to pay nually in each department or program in "States get funds for research. the MI for education. Have we ne- which a concentration is offered. Shouldthe 'seeminglygenerous glected to carry the message that Another source of waste is an over- funds' for research be accepted with- the taxpayer is getting a lot of bene- extended physical plant, with low utili- out assurance that the funds will fit from higher education? We could zation of facilities, and thus an abnor- not be withdrawn before comple- learn from business that the bypro- mally heavy expenditure for plantopera- tion of the research project? Should duct is frequently more useful than tion and maintenance. Questions can be every state go into many research the product itself. The byproducts asked about the average number of class programs? Should we have research of education raise the tax base; periods during the week thata class- programs just to provide prestige and professional pride?" they raise the general income." room is occupied by a class, or the aver- DR.WILSONHAWAII DORA SWEENEYALASKA age number of class periods during a week in which a seat in a classroom or a 1 vert that money to more essential pur- station in a laboratory is occupied by a the last 10 or 15 years to c-i'rect the poses, such as improvement in the sala- student in class.Questions can also be faculty salary situation. There is still ries of the more competent members of asked about the number of square feet quite a distance to go, however, and the faculty. Today, by contrast, the in- of instructional space in classrooms and every citizen who wants to see the institutions themselves seem much more laboratories per full-time-equivalent stu- vestment in higher education most pro- conscious of the need for critical exami- dent. ductive should support continued efforts nation of the productivity of every ex- Another question that needs to be to improve faculty salaries. penditure. Large numbers of universi- asked concernslrends in faculty salaries I was once asked by a member of a ties and colleges have set up internal and the average salary Leing paid facul- state legislature how much longer it management procedures, sometimes in ty members. Here the criterion of effi- would be necessary to continue to ap- the form of an office for institutional re- ciency is exactly the opposite of what propriate additional funds to increase search, to evaluate objectively features might first be imagined, for the higher faculty salaries.It would seem sensible of their programs that may not be effi- the average salary, other things being that sometime the salaries should reach ciently or satisfactorily operated, Most of equal, the more efficient and the more a level where continuation of increases the states now have some sort of central effective the instructional program. One in the average would not be greater than

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what is required to maintain their pur- other callings that make similar demands chasing power. There are at least two for scarce human talent and for extended preparation. With properly agreed upon approaches to the answer to a question .24 weightings, the data could be combined about the ultimate level to which faculty "Education isn't a matter of effi- salaries might be expected to increase. into an index to establish a norm of ex- ciency. It is a matter of the trans- One is the principle, well recognized in pectancy for faculty salaries. The index lation of knowledge and inspiration collective bargaining in industry, that would require revision at frequent inter- from a good teacher toa few stu- the working force should share in the vals as conditions change, and it might dents in a classroom." gains that accrue to an enterprise be- have to be adjusted for different geo- KEEN RAFFERTY cause of labor's greater productivity. graphic regions. The creation of such NEW MEXICO The principle has not been widely ap- an index is not beyond the bounds of plied in higher education, possibly be- possibility, and I commend it to any ments of astronomical proportions. I just cause objective measures of productivity group that has to struggle with the per- don't see that kind of money available have not been well developed. But, to ennial problem of meeting demands for for gifts to the capital of institutional use one illustration, if professors can ef- funds to increase faculty salaries. funds. So I dismiss very quickly the fectivelyinstruct 500 studentsin a Endowment idea that the needed additional support Privately controlled institutions in for higher education can be met by cam- general depend much more heavily than paigns to raise huge amounts for addi- .. wewill repeatedly have to those that are publicly controlled on in- tions to college and university endow- go to our legislatures and ask for come from endowment. While a few ments. money . . . simply to add the qual- of the state universities have rather Gifts for Current Fund ity that we need in the schools. This large endowments, most publicly con- Purposes will not be done in one legislative trolled colleges and universities either The second source now used for the session or in oae gigantic change have no endowments at all or get very support of higher education is gifts for in the fmancing of our institutions. little from such 9nall endowment funds current fund purposes from private or It is something that, as educators as they have accumulated. For higher nongovernmental agencies or persons. and as legislators, we have to work education as a whole, income from en- Since World War II, support from this toward each time we come forward source, especially from corporate enter- with a budget request." dowment supplies only a very small frac- DR. DAVISIDAHO tion of the total support, and the frac- prises, has been increasing in a most en- tion has leen steadily declining over the couraging manner, though the grand pastIralfcentury or more. I see no pros- total of such gifts is still only a small course by means of closed circuit TV, pect whatever of meeting the needs in fraction of total insLitutional income for instead of the 50 that would normally oc- publiclycontrolledhighereducation current purposes. Institutions umler pub- cupy seats in a classroom,the economic through the creation of larger endow- lic control have been amazingly success- situation of the professors should some- ment funds. A million dollars of endow- ful in attracting this kind of support, how share in this gain in productivity. ment, under good management and with sometimes from campaigns among alum- The other approach, which I think proper safeguards for capital, will to- ni or through endowed foundations and feasible and worthy of exploration, day produce about $45,000 annual in- other interested benefactors. Much of would involve the development of some come. To obtain the additional income the support from gifts may be earmarked sort of a parity figure forprofessors' needed by institutions of higher educa- for specific purposes, such as a research salaries. Data could be compiled on the tion from endowment funds would re- project, and thus may not be widely incomes received by practitionersin quire capital additions to the endow- beneficial to the institution as a whole.

8 In publicly controlled institutions, pri- mIMaal= vate gifts may be helpful in providing 7,L funds for the support of certain functions or activities that could not legally be supported by legislatively appropriated tax funds.Sometimes, to accomplish this, universities have set up separate corporations or foundations to handle expenditures from gifts for which no public accounting or surveillance is required. 71Y, Despite the promising increase in income from gifts, the actual amounts now received in this manner are relatively small in proportion to total institutional income. of highly respected leaders in publicly cation through public funds was, and still Tuition Fees controlled institutions of higher educa- is, a contribution by the mature, tax- The third source of support, a major tion have been raising their voices in paying citizen to the education of the one, is the income from the tuitionfees oppositiontoincreasesin thefees young. Now the student himself is asked charged students. Increases in tuition fees charged their students. And I rejoice to pick up the tab for the amount of the are a tempting source of additional in- that some institutions that have long tuition fee.The "gimmick" that has come, because the results are quickand been distinguished bastions of low tui- been used to introduce this new principle the process seems to involve a minimum tion fees have been successful recently is the extensive provision of loan funds, of pain for everybody (except the stu- in resisting determined onslaughts by by the federal government and other dent and his parentswho cares about those who see no harm in making higher sources. The student may borrow very substantial amounts from these sources students as long as there are plenty of education a privilege of the economically to complete his college education and them seeking admission!). With very able. may repay the loans after leavingschool, few exceptions, all institutions of higher Loans in long-term installments. Thus the re- education in the country have availed What is new in the situation of the cipient of the education himself pays, themselves of this opportunity. Tradi- last 10 years or so is the overt effort to instead of the cost being met by the tiopally the publicly controlled colleges shift the burden of supporting higher mature segment of the society. This is and universities are committed to the education to the recipient, rather than, a truly remarkable shift, sociologically. policy of relatively low tuition fees for as in the past, to expect the mature pop- The responsibility that was formerly residents of their respective states, but dation to support the education of the carried by the older generation is now these institutions also have in most cases immature, oncoming generation. In the being shifted on to the shoulders of the made large increases in the fees charged past the "tuition fee" has been essen- young. students.Provisions in state constitu- tially a tax on the parents of college stu- tions requiring "free tuition" have been dents, for it was they who paid the bill. Government Loan Bank Recently another proposal hasre- bypassed by charging fees under other And even the support given higher edu- names. The level of fees inpublicly controlled institutions now is about the same as that in privatelycontrolled colleges a generation or two ago. Custom- arily thepublicly controlledinstitu- tions charge a much higher fee for non- residents of the state than for residents; the nonresident fee tends to approach the level of fees cifrfkjity charged in privately controlled colleges. Possibly you are already familiar with my own misgivingsabout the general policy of placing a large part of the financial burden of higher education on the student and his parents. There is not time in this presentation to go into the arguments pro and con on the wisdom Ak` of this policy, currently so widely accepted. I cannot refrain, however, from commenting on the fact that a number ceived some attention. This involves the should come mainly from thetaxes of that these institutions,too, will in the creation of a government loan bank, all citizens. not distant future be getting their which will lend almost any pre- necessary Government Tax Funds dominant support from amount to any worthy student for as state sources. Support of higher education by local The federal government has many years of college study as he or a history governments goes chiefly to community of more thana century of support for she cares to take. Repayment is to be or junior colleges. Formerly in several higher education, but onlyin the period made after graduation, in the form of cities a munioipal universityor degree- since World War II has thisamounted a one percent surtax on the borrower's granting college has been supported from to any substantial proportion of thetotal annual gross income, paid asan addition local tax funds, but the number of income of colleges anduniversities in to his federal income tax, for a period these is now greatly reduced. Most of the United States. The trendtoward in- of 30 years. There are many obvious the former municipal universities or creased support-from the federalgovern- holes in the proposal that would haveto colleges have become state institutions, ment has been markedly acceleratedin be patched to make it workable, andmy and the few that remain in practically the past 10years, and the results of this brief description of it does not do it all cases get heavy support fromstate increased federal support have, justice.It seems to me, however, that in gen- funds as well as from the local munici- eral, been highly satisfactoryto the ".. the loan fund concept is leaders in higher education, and also, I the way we are going to have to believe, to the thinking citizens ofthe go in education. I don't believe that O.S. But the mood of Congressseems students should object to repaying to raise a grave question at the moment part of the cost of their education about the continuation of the 1967levels over their productive lives." of federal support during the comingfis- SEN ATOR EASTHAM cal year, to say nothing about the sub- NEW MEXICO stantial increases that had been expected. It is too early at this writingto know the sponsors of the proposal overlook whether the proposed cutbacks indicate the fact that this is just theway higher a permanent change in federal policy, education has been supported allalong, or are merely a temporary reaction to without the machinery ofa government the disturbing world conditions andthe loan bank or a promissory note by the drain of thewar in Vietnam on our econ- student. Why not let the student attend omy and on our dispositions. The mood free of any tuition charge, withthe at the moment is somewhat pessimistic. government paying the cost of higher The federal grants thus far have had education out of a general income tax? certain limitations or characteristics that The student, as soon as he begins to earn have diminished their general value for any money, will begin to pay that in- the support of all higher education. For come tax, and will continue to pay it, example, federal grants thus far have not just for the next 30 years but for all been for particular categories of func- the rest of his life. Furthermore, higher education doesn't benefit solely those who attend colleges ".. . the need for education has and universities. It benefitsevery citizen to be more precisely defmed.I who enjoys the fruits of what higher edu- don't think the determining factor cation produces for our society. The REPRESENT ATIVE HOUSE is the size of class; other things are student makes a huge economic contri- ARIZON A involved. You ought to question whether quality of education is bution to his own education through the .# 100 percent correlated with the amount foregoing of income during theyears hc pality. The communityor public junior of money you spend on it." is studying. The cash value of thecon- colleges are also increasingly supported DR. RITA CAMPBELL tribution of time by the student isun- by state funds, though most of themre- CALIFORNIA doubtedly greater in most instances than tain some support from their local dis- the institution's cost of providing the tricts, and the operating control is also tions and limited sharply to the objec- education. To require the studentto locally based. Exbept for the establish- tives laid down in the Congressional acts. forego income while a student, and also ment of new community colleges, there The first Morrill Act in 1861 made to accumulate a huge debt as a mortgage does not seem to be much prospect of grants of land to each state for a col- against his gross income for 30 years any substantial increase in the contribu- lege in which agriculture and mechanic after graduation is, in my judgment, tion of local governments to thesupport arts would be taught, and this limited totally unfair treatment of our young of higher education. Indeed the continu- objective has enjoyed increasingly heavy people. Publicly controlled higher edu- ing tendency of the junior collegesto categorical support from the federal gov- cation ought to be tuition-free to all who seek increasing amounts ofstate finan- ernment ever since. The Smith-Hughes can benefit from it, and the support cial aid would indicate the probability Act of 1917 made limited grants to insti-

10 tutions for the preparation of high school is, however, a significant break away cause of the fear of accompanyingob- teachers of vocational subjects. The G I from the strong precedent of limiting jectionable federal controls. This atti- bill and its subsequent extensions were federal grants to capital purposes, in the tude seems to be dying down; actually aid to students, and to a limited group of recent provision of current funds for the record over the hundred years of his- students, not direct aid to higher educa- new and extended programsof gradu- tory of federal support gives very little tion. Loans for the construction of stu- ate study. warrant for such fears. Those who have dent housing were provided under the Another limiting characteristic of the to struggle with the problem of financ- Housing Act of 1950. The National federal funds is that so frequently they ing higher education at the state level attention Defense Education Act of 1958 provided have been in the form of loans rather can well afford to devote some funds for loans to students. Later sup- than outright grants. Examples are the and effort to the encouragement of much plements to this act provided funds for funds for loans for student housing, larger, noncategorical grants of current new or extended programsof graduate the funds for loans to students, and the operating funds from the federal govern- study and for fellowships for students loan provisions of the recent Educa- ment. entering such programs. The more re- tional Facilities Act. The federal gov- State Government cent Educational Facilities Act has pro- ernment can well afford to be generousin The remaining source of support for vided grants and/or loans for the con- providing loans, for that costs the gov- higher education is the one with which struction of academic buildings, with ernment nothing except the use of its this conference is particularly concerned certain restrictions.There has never well-established credit. Admittedly, it is state government. All other sources yet been any act of Congress providing nice to have a "friendly loan company" of supporting funds for publicly con- general,noncategoricalsupportfor that will come to one's rescue when he trolled higher education may properly be considered as merely aids to the reduc- tion of the financial burden assumed by the state. Under the American system of government, the state is the agency that is ultimately responsible for the provision of education for the people, and this responsibility involves not only the control but also the financing of the necessary facilities and services.Every state has a long tradition of accepting this responsibility, and it is the backbone of the American system of education. I see no signs of a departurefrom this principle, even though the states have always groaned a bit under the burden of providing the financial support of higher education. As late as six or eight years ago many authorities on public finance were saying that the states had reached the limits higher education. And yet, funds of the needs money badly. But the federal loans will have to be repaid (unless, as of their ability to provide additional tax noncategorical type are the most valu- funds for higher education. I must ad- some are doubtlesshoping, Congress able in the operation of effective insti- mit that I agreed with them, for the eco- tutions of higher education. should get a generous impulse and begin forgiving these loans) .And unless nomic arguments were most convincing. Another characteristic .of the federal But the economists were wrong (and so there is forgiveness, ihe federal loans will grants for higher educationis that to a without exception have to be repaid by funds from sources was I), for the states large extent they have tended to be for have made amazing gains in their ap- other than the federal government. Un- capital rather than for current purposes. propriations for higher education during The Morrill Act of 1861 made grantsof der present policies, the burden of carrying thia debt service is falling (unfor- the last eight years. land for the endowment of agricultural The best up-to-date figures on state tunately, I believe) almost exclusively colleges; later, however, annual appro- appropriations for higher education are on the studentswho attend the institu- priations were made for the current sup- published by Dr. M. M. Chambers, visit- of such tions that have borrowed federal funds. port of the specified programs ing professor of higher education at Indi- The possibility of future support from colleges. The Housing Act of 1950 pro- ana University. About once amonth he vided funds for loans for studenthous- the federal government in greatly in- gets outalittle privately circulated, Educa- creased amounts for noncategorical aid ing, and the National Defense mimeographed report, entitled GRAPE- tion Act provided funds for loans to stu- to higher education has, inthe recent past, seemed fairly realistic. In the past VINE, giving the latest information dents.The Educational Facilities Act about state appropriations for higher there has been some public opposition to provides capital funds for plant construc- education and associated legislative action, through grants and/or loans. There federal support for higher education be- 11 tions in the states. He has continued On the basis of gains in appropria- ily, long accustomed to buying a new this long enough that he now has figures tions of state tax funds for higher educa- Buick every year, that this year showed over a period of years. The issueof tion over the eight-year period 1960-68, ug with only a second-hand Volkswagen. GRAPEVINE forNovember,1967, eight of the WICHE states are below Failure to maintain annual appropria- contains on page 690 a summary tabu- the national weighted average in per- tions adequate for an increasingly ef- lation for each of the 50 states showing centage of gain. This may be only a re- fective system of higher education is not the dollars of appropriations of state tax flection of the fact, in some of these a good advertisement for the economic funds for operating expenses of higher eight states, that they were supporting stability and prosperity of a state. education for eadh fiscal year ending in higher education well beyond the na- even numbers from 19,59-60-to19p7,68. tional average in the base year of 1960, HIGHER EDUCATION IS The tabulation also shoivs Calculation and hence theirpercentage of gain AN INVESTMENT of the gains, in amounts and percentage would not be as high as in other states When the economists some six or of increase, for each state over the most where state support was low at the start eight years ago made their pessimistic recent two-year period, 1966-68,and of the period. For example, spectacular prophecy about the future ability of the over the eight-yearperiod, 1960-68. The gains for the eight-year period are re- states to support higher education, they weighted average gain from 1960 to ported for New York and Maine, 449 probably failed to take account of one 1968 for all states is 213 percent; that percent and 441 percent respectively ; very important factor. That is the effect is, total state appropriations of tax funds in those states there has been a sudden that higher education has on the im- and realistic reappraisal of the govern- provement of the tax base in a state. mental responsibility for financing high- When a state begins to spend money on

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DR. LIEUALLENOREGON er education. a freshman in college, it is only a few It has been done! Can it be con- years, five to seven at the most, until more than tripled, rising from $1.4bil- tinued, as the needs for financial support that freshman is himself a taxpayer. The lion in 1959-60 to $4.4 billion in 1967- continue to increase in institutions of normal effect of his collegiate education 68. Only two states, Oklahoma and Mon- highereducation?You peopleare is to place the student in a higher tax tana, fell short of doubling their state among those who will have to answer bracket than he would have been in with- appropriations in this eight-year period; this question in your respectirstates. out the education. Thus the state begins their increases were 73 and 90 percent Here and there an occasional k iplosion to get increased returns in tax collections respectively.In the most recent two- is heard, with intimations thaw the state rather quickly from its investment in year period, 1965-68, the weighted aver- has already over-extended its support of higher education, and these returns are age increase -"or the 50 states was 43 per- higher education. Some states in which cumulative throughout the life of the cent.Again every state increased its newly elected officials have set out on a one who was educated. There areother tax fund appropriations in this most re- program of trinuning appropriations for governmentallysupportedfunctions, cent two-year period, ranging from a 6 higher education have wound up appro- such as highways, that probably have percent increase in South Dakota and 12 priating substantially increased funds this same economic effect of increasing percent in Oklahoma, to 83 percent in (though perhaps less than had been rather quickly the tax !base from which Virginia and 80 percent in Massachu- hoped for).I can imagine that a state they are supported.Elementary and setts. There were nine states in the two- which would actually have to make a high schools most certainly have this ef- year period 1966-68 in whichthe in- catback in its support of higher educa- fect, but the results are delayed con- creases were more than 60 percent. tion would feel very much like the fam- siderably longer than those from higher

12 lege to be more selective in itsadmis- education in the normal course of events. states should make tax fundsavailable anditalso probably In another way the investment in high- for the support of colleges and univer- SLAIS policies, er education tends to improve quickly sities that are not under public control. makes it easier to adjust tuition fees up- ward without undue hardship on some the state's tax base. Increasingly today In most of the states there are explicit students from families in the lowerin- industries that employ substantial num- constitutional provisionsthat prevent In some institutions state bers of well-educated personnel, at high- this, though in two or three states it is come brackets. scholarship funds have been used to er than average wage or salary levels, not only permitted but followed as a of tend to locate in centers where higher practice, though the aid is usually re- replace the institution's own support thus releasing education, andparticularly graduate stricted to institutions not under church a scholarship program, study, is available. This is not so true control. The policy of seeking support such institutional funds for other pur- be noted, defeats the of industries in which the average wage from public tax funds is by no means poses; this, it will providing scholar- level tends to be low, but even these sorts unanimously accepted among those who purpose of the state in of firms seem to be giving thought, in are associated withprivately controlled ships, for there is no extension of the number of young people who are agisted their location of new plants, to the avail- institutions.It probably would not be ability of a supply of well-educated acceptable to the majority of the citizens to get higher education. Personally, I would not advocate the people for their labor force. Most states of most states. The proposed new con- adoption of a state system of scholar- make some concerted effort to attract stitution for the State of New York, ships as a part of the state's service to new industry and newpopulation, and drafted at a cost of some $10 million, higher education. If a scholarship sys- the higher the wage level of the industry was rejected by a 2-to-1 vote at theelec- tem seems advisable, it shouldbe treated and the higher the educational expect- tion on November 7, 1967, though it as money spent forwelfare, not for ancies of the incoming population, the had impressive political support frmii higher education. And I would prefer better it is for the state in many ways, such prominent personages as Governor to see it administered by thewelfare de- not the least being the improvementof Nelson Rockefeller and U.S. Senator partment, especially if a means test is the tax base. No state wants to advertise Robert Kennedy. Many observers attrib- qualifications for "Don't come here if you want your uted the proposed constitution's defeat set up as one of the receipt of a scholarship. A scholarship young people to enjoythe opportunity to its failure to contain the usualclause does not buy a nickel's worth of educa- for an increasingly effective pragram of prohibiting the expenditure of state tax Education is pur- higher education." The fact that a widely funds for the support of privately con- tion for the state. available program of higher education trolled or church-related institutions. chased when faculty salaries are paid, or library booksbought. The income of excellent quality contributes notably Although most states make no direct from scholarship holders appears as tui- to the economic prosperity of a state or appropriations of tax money available tion income on the institution's accounts, a nation canreadily be demonstrated to privately controlled institutionsof higher education, such institutions do en- and the scholarship merely makes it obj ectively. State Support for Private joy certain types of public supportthat easier for some people to get access to seem unobjectionableand that are in- education. If institutions are all operat- Institutions? ing to capacity, the scholarship holders One important question remains to deed very valuable privileges. They en- merely replace other students who could be raised. What responsibilityshould joy, for example, exemption from state and local property taxes and also from pay their own tuition. Ifthe institutions the state government assumefor the ade- other forms of taxation in most states. are not operating atcapacity, every quate financial supportof privately con- Some years ago I calculated that this scholarship holder admitted increases trolled institutions of highereducation? the institution's need for supporting of the privilege of property tax exemption, at This question is less acute in most funds other than tuition fees, for the there are relatively the going rate paid by nonexempt organ- western states, where amount of the scholarship is nearly al- colleges and izations and persons, was probably worth few privately controlled ways less than the institution's costof universities, than it is in theEast and as much as 15 percentof the total cur- privately controlled educating the student. some midwesternstates. But the ques- rent income of the colleges and universities of the country. Actually, in the technically correct tion is a live issuebecause currently the tax accounting classification for institutions privately controlled institutions arehav- Another form in which state of higher education, income and expend- time balancing money is sometimeschanneled into pri- ing a harder than usual iture for scholarship purposes is strictly the same need vately controlled institutions ofhigher their budgets. They face segregated from the educational opera- the pub- education is by a state system ofscholar- for increased expenditures as tions, and is labelled as "noneduca- and their ships. Theoretically this is aid to stu- licly controlled institutions, tional" incOme and expenditure. In my have not been as re- dents, not to institutions of higheredu- sources of income opinion it is a mistake for a state to label the sit- cation. And I doubt verymuch that sponsive to the new demands as its appropriations for scholarships as all of them have scholarships prbvide any real aid tothe uafion requires. Almost being for "higher education ;" instead in tui- college or university, assumingthat the resorted to rather steep increases such appropriations should be classed as tion fees, and in many casesto some institution can get all the students it can there are scholarships welfare, along with aid for dependent limitation on increases inenrollments. care for whether normally the case. The children, old-age assistance, service to Some leaders among the privately con- or not, as is now scholarship system does permit the col- the blind, and programs of that kind. trolled institutions haveurged that 1the The best form in which the state can Furthermore, the question itself im- sales of color-television sets in the past give its money for higher education is in plies possible misconception about the few years is all the answer that is needsd direct appropriations to its institutions, nature of the funds a state may have to support the principle that people will in amounts sufficient to enable them to available for distribution to the various buy what they want, without too much charge only minimal tuition fees, or bet- functions it supports.I know that the regard to their immediately available ter still, no fees at all, and to remove the appropriations committees of the legis- resources. economic barrier that now prevents some lature are customarily given a budget In any event, I am not an unbiased capable young people from continuing 'figure, probably prepared by the state witness for an answer to the question their education beyond the high school. finance office, which sets certain outside about the proportion of the state's avail- flow Much State Support for limits for the totals that may be safely able revenue thai should go to higher Iligher Education? appropriated. This figure practically al- education. I am a protagonist for high- One final reference should be made ways assumes no change in the tax struc- er education, and I do not intend to to a question that is sometimes asked. ture, and it is nearly always figured on abandon that role at this stage of my Wliat share of its available tax resources a conservative estimate of the probable life.I do sympathize with members of should a state devote to higher educa- total revenues for the coming fiscal a legislative appropriations committee tion ? I do not believe there is a cate- period.In many states this available that have to struggle to make the blanket gorical answer to this question that is revenue estimate has a history of being of the state's inadequate revenue cover valid for all times and for all states. So notoriously conservative; from time to all its childrenthe agencies and organ- much depends on what other obligations time the legislature disregards it, and izations for whose support the state must the state has taken on for support. States still the state remains fmancially solvent. assume responsibility. In the long run, from time to time take on new obliga- This conception of the possible reve- it is not I but the people back home who tions, and this process would throw out nue of the state being a fixed amount is elect you that will tell you whether your of adjustment any fixed percentage dis- probably inaccurate. People generally judgment about the distribution of the tribution that might have been worked will pay for what they want, and if they state's resources in the apppropriation out for higher educition. I have seen really want higher education adequately act is right or wrong. My personalfeel- states take on such new obligations for maintained, or good highways, or a ing is that you won't lose many votes for support as highways, welfare, fish and justifiable system of welfare, they will re-election if you use every means at game management, parks and other repay for it.In the economy of abun- your disposal for seeing to itthat higher creational features, police control, and dance, the resources for supplying man's education is adequately supported in many others. The functions supported wants are not fixed and limited but are your state. I have never seen orheard by the state may change in character and subject to great elasticity.This is true of a state or nation that went bankrupt importance from time to time and make in personal and family expenditures, as because it spent too murh of its resources differing requirements for support. well as in public finance. Perhaps the for the support of higher education.

1CHE WINIMM

AM, Comments on Dr. Russell's Paper

or fees should not bear a major portion education was goingtohave some of the cost of education in public insti- financial problems. In Oregon, virtu- tutions. This is one situation in which ally every budget of every maj or school the strong in our society get a break. district was 7oted down. We spend a lot of money on the weak, Representative Hansell, house chair- but this is one of the few places where man of the Ways and Means Committee we spend money on the strong. We need in Oregon, and I spoke to the State to spend more money on our strong and Board of Education about clagsroom keep them in a position to support the load and pointed out that maybe some weak. of their regulations were too stringent A. Look at the Total Picture and that if they would relax these regu- State government is still the major lations, perhaps local school boards supporter of higher education and in the could adjust their budgets accordingly. foreseeable future will continue to be. In Oregon we have one of the lowest But in thisconference perhaps we classroom loads in the United States, ought not to talk just about higher and in the western states, particularly. education. We ought to talk about the We also pay a fairly good rate to our total picture of education as it relates classroom teachers. But we are $1,200 to state government, because every one under California and California has is competing for the same state dollar. always been held up to Oregon as the Primaryandsecondaryeducation shining example. I don't know who is L. W. NEWBRY people, community college people, and their shining example, but this is the State Senator, Oregon higher education people are all com- thing we have to suffer with. So how peting for a limited number of dollars can it be, when California pays less per We Need Well-Educated People that are available to the legislature to capita for primary and secondary edu- on Every Level appropriate to these various functions. cation than Oregon does, that they can There is no question as lo the need To consider higher education's problem pay their classroom teachers more? It for higher education. Our enrollments alone is to ignore some of the other is simple. In California they have five are growing. Our society is such that major problems that do exist. What more children in each class on the aver- we need a lot more people who are well we have to do in solving higher educa- age than we do in Oregon. When you educated. We have no place in our tion's problem is to set our whole educa- consider that it costs $600 a year to society for ditch diggers. If you have tional program in order. educate a youngster, that is $3,000. ever watched a consbuction operation, Classroom Load It is easy to pay a teacher $1,200 more you've noticed the absence of the old Dr. Russell spoke of making higher under those conditions because the tax- No. 2 shovel. The only place they are education dollars go farther.I agree payer then gets to pocket the difference used now is on farms such as mine, that we need to. How can we? Teacher of some $1,800. You can carry this to for irrigation. We need well-educated productivity and classroom load are extremes, of course. You can get classes people on every level And this brings importantinthe overall picture of too large. But one of the things that us to our major problem. education. happens to us on the Ways and Means I, like Dr. Russell, know of no new It became apparent in Oregon during Committee is that we are confronted resources for education. I think endow- our regular session in January and with this problem of student-teacher ments ought to be left to private schools. later on that our revenues were de- ratio. Our State Board of Higher Education clining.Our economy hassuffered We are also confronted with the prob- asked for legislation to accept endow- primarily because of the lack of housing lem of raising salaries for professors for ments.The legislaturerejectedthis starts and the fact that our economy is higher education. As Dr. Russell has because we felt that this ought to be an geared to the timber industry. We alluded to here, it might be wise for us area left to the privateinstitutions. knew we weren't going to have the money to take stock of this situation,forget They are having a tough enough time that we had hoped to have. Anotho about student-teacher ratio in primary, as it is. thing that we knew was that the dispo- secondary, and higher education, and In this matter of tuition or fees, sitionof the taxpayer had changed start thinking more and more in the whichever you choose to call them, the somewhat and his feeling toward educa- light of providing teachers with more studentis paying something borhis tion was a little different than it had tools and more opportunity to work with higher education.1 agree that tuition been before. We knew, mos, of us, that more students.

15 Industry's Answer : Greater to more students. Then we can pay these primary and secondary education don't Efficiency teachers more money. But until we find affect you in higher education. They Industry absorbs higher labor costs out how to do this, we are going to be affect the legislature, which in turn has by improved productivity. I think edu- paying the good teachersthe same to divide up these dollars. And if those cation should do the same. The Ford amount of money that we are paying the people get the first grab on the dollars, Motor Company has completedand mediocre ones simply because they are higher education will get the last grab. General Motors is about to complete all doing the same job. Budgeting on Unit Cost Basis a new contract inwhich there are going We need teacher productivity im- Instead of budgeting on the basis of to be tremendous increases in wages. proved in all levels of education. If we so much for this and so much for that, Some of this is going to have to be don't do this, we are going to have more maybe we ought to start budgeting on passed on to the consumer, but a big problems with our taxpayers. We are the basis of per student cost. You might chunk of itis going to be absorbed faced with teacher strikes in the class- do this on the undergraduate and on the through greater efficiency.Somebody room levelin primary and secondary graduate level and other categorical in management is going to figure out education. I hope this doesn't happen to levels. This is a way in which you could how to get more out of those people us in higher education. measure efficiency of the operation of that are being paid more money. The Legislature's Problem your institution, and it would give the We have to start doing this in edu- These are problems that affect all presidents of institutions an opportunity cationfind out ways in which teachers, of us.Don't think for a minute that to use their ingenuity in making these good teachers, can extend their influence the problems that they are having in dollars go as far as they possibly could.

Our subject "Higher Education Fin- As Dr. Russell has stated, this nation ance" seems a little limiting. Therefore has done a tremendous job in the past. I want to broaden it. I think that there We've done a terrific job in education are other implications throughout all at every level. With that as a base, if of education. What should we do to education's needs are properly expressed

AV. solve the problems about education and sold, do we really have a right to from the level of preschool on through be terribly pessimistic about the future elementary, secondary, vocational, col- even though we are faced today with lege, professional schools, continuing some significant problems? education, and all the myriad types of If we fail to meet this test of doing a educational programs that seem so vital- good job of selling the need for good ly necessary and also so extremely cost- educational programs and good finanCial ly? support, can the burden of this failure Obviously unless we can find a solu- properly fallon anyone except edu- tion to what we call the problem of fi- cators? nance, not all of the desires for educa- Some Basic Considerations tional programs can be attained. We are seeking a sound financial and We Need More Education educational policy expressed so that all for Our Money or at least a major portionof society will When I consider all of this I am un- honestly accept this philosophy. If we willing to stop at the statement "Educa- are willing to expressthis philosophy tion Needs More Money." We need broadly, we should be able to talk about EDW ARD W. NELSON more education for our money. the need for budgets, buildings, and Executive Secretary, Is there a good answer to these ques- curriculums. And we should be able to The Montana University System tions? Can we adequately fund the bur- talk about these in terms of sound Dr. Russell speaks of what is probably den of :increasing enrollments, increas- planning, policy, and coordination. Dr. the most significant problem in educa- ing programs, increasing competition, Russell has alluded to all of this. tion and government todayfinance. increasing need for quality, and increas- If we are willing to attack the basic He also points out some directions for ing costs? If we can do thishow is it areas, I believe we can solvetoday's and finding solutions to the problems. to be done? tomorrow's problems. How can we do

16 rx'

this? We can do it honestly. That al- this burden should be placed on the gen- they are not only part of the problem most sounds ridiculous. But, is it? eral taxpayer and how much should be but also part of the solution. The possi- Perhaps you have heard the story charged to the recipient of educational bility of achieving added economy and that good taxation is like plucking a live benefits; and (4) recognize that in this efficiency in the use of university re- chicken. You want to grab the most context "good taxation" requires the sources has not been explored to its full- feathers where you get the least squawk. broadest possible base and the lowest est potential.Academic supermarkets Apparently, this is the way most tax possible rate. with an eye for one more customer may programs have been developed. This is opposed to the usual legisla- not be our best answer to education's Unfortunately both taxation and edu- tive concern over (1) which community needs.Faculties could well recognize cation seem to have some inherent people has the biggest state payroll and how can that sometimes their delight in having a problems. By this I mean that most legis- my community join in the fun; or (2) strongtenure program is not the most lation seems to be tinged with partisan we increased your appropriation last professional attitude they could take expediency.- Perhaps this is proper. Ad- year;or(3) how much out-of-state toward solving either the staffing, or the ministrators have the same problem when travel do you do? Recognize any of economic problem of university units. a difficult decision relating to education those? The public, with what I call a "cham- is avoided by using dollars to avoid mak- Governing boards could do a tremen- ber of commerce syndrome," could be ing that decision. Harsh as this sounds, dous job of helping education by becom- encouraged to note that education's vital it is these kinds of problems that also ing policy boards rather than adminis- concern is more than bringing customers need to be resolved before clear answers trative boards. The establishing of poli- to main street and, whereas it is nice to can be reached in educational finance. cy and using policy as a directional have your own little community college, The Honest Approach philosophy could resolve much of the it is a little confusing when we find that I said I thought I had the answer. 'unknown when we take a forward look education is expensive when taxes are How do we prove me right or wrong? at education. paid, but a wonderful industry for our It could be done this wayand this is Coordinating offices such as mine town no matter what the school's edu- only a brief list-of suggestions. could become vital service agencies and cational value might be. Legislatures could:(1) decide how information transmitting agencies for All of you could add to the list. This far their state should go in establishing all educational programs rather than to won't solve all the future tasks outlined public education; (2) decide how much permit themselves to become self-serving by Dr. Russell, but I believe this indi- money the program needed to be a quali- bureaucratic ventures. cates a need for involvement of all of ty program;(3) decide how much of Administratorscan recognize that us.I also believe thathonestlywe might just be able to get the job done. ICHE

CON. F. SHEA learning in Colorado have been relating State Controller, Colorado to our office and others for some years, I was glad to hear Dr. Russell ac- but with special emphasisinrecent knowledge the fact that state govern- months and weeks as the time for an- ments have been able to provide "amaz- other budget recommendation toour ing gains in their appropriations for General Assembly draws close. higher education during the last eight Budget Problems years." The growth in the last two years In Colorado, in our public institutions is 44 percent, or at the rate of 22 percent of higher learning this year, there are per year. some 70,000 full-time equivalent stu- As one involved with fiscal affairs of a dents, including 8,000 at junior col- state, I was somewhat dismayed at the leges, and 62,000 at other colleges and prospect for the future as outlined by universities.They tellusthat there Dr. Russell, that there is going to be a will be 6,000 more students next year, continuing need for substantial addi- nearly 9 percent growth. This growth tional growth in the years ahead for the in pupils is just a bit higher than the same purpose and for the reasons he so expected percentage growth in state rev- ably outlined in his remarks. I wasn't enues from existing sources at existing surprised, however, for that message is rates, which means that to take care of the same one the institutions of higher faculty and staff salary increases, price

17 increases, and other cost increasing fac- I would strongly disagree with Dr. Rus- lege graduates make one and one-half tors such as opening new buildings, the sell that it should be handledas a wel- times as much as high school graduates, budget levels of support must be in the fare expense. Welfare expenditures in and those with graduate school or profes- neighborhood of 15 percent just to get our state are high enough as it is. As a sional training earn in éxcess of 80 per- by, without doing a great deal toward matter of fact, if it were not for restric- cent more than high school graduates. improvement of quality levels. tions in the fede_ 3 welfare law thatas Multiply those differences by the ex- The budget equation, therefore, ofa they increase their grants for welfare, pected earning years, and you can see 9 percent growth instate revenues the states cannot reduce their level of why there is a clamor for college edu- doesn't fit a 15 percent increase in high- spending for welfare, there would be cation of some sort. er education budgets, unless it is taken more money available for higher educa- In addition to the personal advantage from other areas of the budgetor from tion today.Higher education would cited, the investment in education pays surplus.Fortunately, Colorado hasa benefit if the federal governmentac- dividends in that, with education, a bet- little surplus this year, and the budget knowledged that deserving studentswere ter use can be made of the other factors can be balanced, but what of the future? one of the categorical programs, but such of production in the economyland, For the next .five years, weare told that recognition has not been forthcoming. physical capital, and enterprise.One this same kind of situation will obtain. author quoted, Edward F. Denison, at- What are we going to do about it? Education as an Investment tributes to education about 23 percent While we are on the subject of tuition, of the growth of real national income in What Can States Do the payment of tuition by parents and the nation from 1929 to 1957. About Budgets? students would not be so distasteful if There you have it, legislators and edu- Because a considerable amount of de- the federal government would recognize cators, justification for asking of stu- pendence has been placed in state bud- it as an investment expenditure, and al- dents and parents for at least a portion gets on the availability of federal funds, low such expenditures to be deducted of the costs of higher education through it would behoove all of us to work on from federal income tax.States, too, tuition. The remainder, because of its some kind of guaranteed commitment with income tax should allow such de- importance to the future of the nation, a year or two in advance from the fed- duction. Deductions are allowed to en- can be the justification for the taxation courage home ownership, investment in eral government in the future so that levels necessary to provide the balancing other capital items, and for mineral states are not caught in the very unpleas- ex- appropriations. ant position of havirig geared their pro- ploration. Why not for the investment grams up to a certain level, and then in education? being caught in a retrenchment position In looking for material to determine The Need to Review Budgets because of monetary and fiscaldiffi- the cost-effectiveness of all of the ex- I would not want to leave the impres- culties of the federal government. penditure of state tax funds for higher sion that as a budget person I only saw State colleges and universities must education, and to develop the thesis that the needs for all the money that was re- look toward tuition and state appropria- education is a type of investment which quested for this purpose. Budgets of in- tions for the bulk of increased support, ought to be allowed as an income tax de- stitutions of higher learning must con- adding anything they can obtain from duction, I came across an excellent arti- stantly be reviewed in order to achieve 0,°Its or increased endowment. cle in the September-October, 1967 the greatest economies in the spending In Colorado some years back, as the Monthly Review of the Federal Reserve of money that is made available. New result of a study commission on educa- Bank of Kansas City. methods must be sought for doing the tion beyond high school, a general tui- They cite the fact that the median job in a more economical manner where tion policy was adopted that required school years completed by the adult pop- possible. Some of the exchange pro- the student to pay approximately 20 ulation of the United States (those over grams and joint use of facilities fostered percent of the cost of educational and 25 years of age) has risen from 8.6 by WICHE among the states must he general expense if a Colorado resident, years in 1940 to 11.8 years in 1965. undertaken even within our states in and 60 to 90 percent of such cost if not Not only is the number of years of aca- avoiding costly duplications of facilities. a Colorado resident. The educational demic training increasing, it is increas- Private institutions should be included and0ueneral cost is determined as the ing at an accelerating pace. This ex- in such possible joint facility use where result of expenditure categories devel- plains somewhat why we have such an feasible, for they, too, are obtaining oped by Dr. Russell and Dr. Doi at New increasing number of students in our money from the same sources as public Mexico and which were adopted in Colo- public colleges and universities. Why colleges even though indirectly in some rado's colleges and universities. Approx- do they want to go on to school? cases. imately 10 percent of the potential tui- The article goes on to state that medi- As a believer in state government and tion thus obtained is not included in the an annual incomes in 1965 by level of in our ability to handle the bulk of the cash receipt expectation of the institu- educational attainment were $2,912 for cost of educational and general expenses tion for state budget purposes. This gives a person with an eighth grade education; necessary for education beyond the high at least that amount as a scholarship $4,524forhighschoolgraduates; school within our borders, the excellent potential for needy and deserving stu- $6,775 for college graduates, and $8,342 analysis prepared by Dr. Russell should dents. Colorado does not have anygen- for graduate or professional graduates. be a challenge for us to go out and get eral scholarship program, but if it did, In other words, taking the median, col- the job done.

1 8 - In the field of increased efficiency, The opinion on tuition increases varied many legislators felt that this was an not a little geographicallyas indi- extremely important point, anda num- cated by the evaluation sheets turned in. ber of university administrators agreed The middle mountain states and the that more attention must be given in this northern states of the western group here area. A word of warning came along reacted more or less in favor of in- with thisthat an educational institu- creased tuition or maintaining the pre- tion aiould not be considereda factory. sent levels. The Southwest and Cali- This came from nearly all quarters, in- fornia, as indicated on the evaluation cidentallyon the floor, the observers, sheets, seem to be in favor of lowering and the comments of the conventionpar- or even eliminating tuition altogether. ticipants.It seemed that most did not Long-term loan programs, it was felt by want efficiency geared to such factors as most conference members, need consider- teacher-student ratios and felt that the able more study which was indicated budget fora miiversity should not be as the medium for aiding in the research based on such criteria.Most of the in this question. WICHE should be the legislators indicated that they would medium for conducting research in this like to have had more discussionson area. Even though, during the past eight measuring devices, if I mayuse that years, state participation in higher edu- - phrase, of productivity for studentcon- cation far exceeded the projections made sideration or rather budget considera- prior to this period, legislators expressed tions and would like tosee more study their fears that the taxpayer resistance V. MAURICE SMITH made in this area. State Senator, Alaska will increase in the future. Lawmakers The three proposals for increased in- The state tax dollar is going to be the and educators wondered if the saturation comeincreased tuition,federal and main source of funding for higher edu- point has been reached, or is about to be - state loan programs, and tax credits reached. cationin the western states as wellas produced varying reactions from the many others. But a number of legisla- Senator Newbry of Oregon cited the convention members, legislators, and defeated bond proposals for schools in tors and educators feel that sources of educators. Dr. Russell's proposal that income have not been fully explored, and his state and in other states throughout the federal or state loans to be repaid the nation.I think most of you are they desire further consideration of this over a long period of time be put aspect of financing higher education. In- aware of these, particularly in the lastI through welfare departments wentover creased state funds may meet taxpayer year. In my own state we sent several somewhat like a heavier than air aircraft school bond building proposals right resistance, however. This was pointed without any fuel.That thing really out by Senator Newbry of Oregon. down the tube on rather large margins. went down the tube as far as the evalu- Dr. John Dale Russellsays that, of the In general, on the part of practically ation papers were concerned. A good all the legislators anj many educators, four main sources of fundsfederal, percentage of the conference members state, endowments, and giftsonly the both on and off the floor,more such took violent exception to this.Others state appropriations are really signifi- meetings as this with more time to dis- did not understand what the thinking cuss the various phases of the problems cant at this point. Endowments, gifts, was on it. and federal programs cannot be in- was indicated by these evaluation sheets. creased in sufficient amounts, apparently, to close the gap between what is needed in financing and what is available. rtr The mood of the 90th Congress, as 311glia Dr. Russell pointed out, seems to be stalled somewhat as to further appropri- -AV.* ations along this line. Senator Russell, soF as many others, indicated strongly that streamliningeducation,economizing, consolidating,andotherwise making more efficient the process of higher education may be one way of meeting the demands of increased academic programs and cost brought on by increased enrollments, higher costs of operation, the higher cost of borrowing money, and the need for the additional courses that result as we move along in higher educa-

tion. 11, - There was criticism of the lack of time of course was divideddivided some- Virtually no one doubted the value in buzz sessions.Apparently a good what geographically, which will come as of higher education. Many expressed many people enjoyed at least the one no surprise to most of us. fears for its financial well being. All that I am reporting on, the one on The feeling was expressed of lack of are concerned and want to contribute. finance. time and the need for more specific Concrete proposals, yes; generalizations, It may or may not be significant that proposals. Legislators faced with a con- no. at least one evaluator was puzzled by sideration of appropriations for higher I want to wind thisup with a story the lack of faculty and student partici- education and considerationforthe that most of my legislative colleagues pation in a conference of this kind. pocketbooks of their and our constituents will appreciate. A fellow wrote, "We Several conference members expressed expressed a desperate need for more in- dedicated our new school today, theone considerable lack of enthusiasmfor formation, much more study, and more that you helped provide the funds for, further federal participation with or frequent opportunity to sit down with and want to thank you for your efforts without controls. There were a few pros educators and others concerned with in bringing this new school toour city. on the question of federal participation higher education. They felt a great need Don't raise taxes any more." with and without controls. The opinion for more concrete proposals.

20 Section 3 THE ACADEMIC COMMUNITYAND PUBLIC SERVICE Robert E. Smylie*

would have been disastrous. a viable, constructive, responsible soci- In 1916, Charles Van Hise, president ety: of the University of Wisconsin, said 1. The university provides unique in- that "Times of unrest and change are stitutional strengths. It has a staff, build- not the times for the university to trim; ings and ground, endowment, and a cli- they are the times to set every sail...." mate within and prestige without that Today, in view of the pressing social constitute unique strengths for resolving problems which confront us all, universi- the problems of a sooiety. ties must continue their essential mission 2. The universities,as they have of transmitting, cultivating, and advanc- grown, have acquired a substantial ing learning, and still play a decisive monopoly of the particular kind of hu- role in meeting the needs of a dynamic man talent required for dealing with society through public or community the problems of a society as distin- service. guished from the problems of an "enter- Every aspect of life in America is af- prise." fected b) our universities: agriculture, 3. The universities possessa disci- industry, labor, the performing arts, in- pline of objectivityan asset that is international trade and relations.This finitely valuable in a competitive, ten- afternoon, I shall focus on the responsi- sion-packed society. bilities of universities to our state and 4. The universities are committed to local governments, and suggest several the search for new knowledge. Let me say at the outset that I am most public or community service programs 5. The universities possess values; pleased to be able to address you today, designed to develop and apply useful they stand for something; indeed they and specifically to talk about what the knowledge in the solution of some of stand for the most civilizing values of academic community might do for the society's major ills. which we knowfreedom, justice, hu- rest of us. Because of the tremendous scope of manity, and individual human dignity. I spent so many years of my life the problems facing our society, the Universities can work especially ef- trying to be a modestly good provider variety of needs to be met, questions to fectively in those areas of government for the academic community that it is be answered, and solutions to be found, in which the pattern of programs, rela- pleasant to turn the cart around. we must abandon a system of organiza- tionships, and responsibilities is evolv- I assure you, ladies and gentlemen, tion in which agencies of government, ing to meet needs resulting from social that my ideas will have very little ivy business corporations, and universities and economic change. They can be in- on them. They are concrete suggestions conduct affairs as if they were islands strumental in identifying emerging needs about what academia can do to help unto themselves. Many of the agencies which require govermnental interest, solve some of the pressing social and working on society's problems are simply and in assisting governments to adapt, cultural problems of the day. Talented tending the machinery of that part of create, and develop the structures, pro- public administrators are in short supply, the society to which they belong. The grams, and processes which will most and the governmental machinery creaks machinery may be a great corporation efficiently and effectively meet defined and groans. It is time we did something or a great law practice or a great uni- needs. about it, and the universities are a good versity. These people tend it very well GOVERNMENT MACHINERY place to start. indeed, but they are not pursuing a CREAKS AND GROANS There has been enough derogatory vision of what the total society needs. Urban governments need assistance in comment about schools of business ad- defining and implementing the public ministration to last awhile. It is just as RESPONSIBILITIES role in advancing the level ofgovern- OF UNIVERSITIES well that no one discovered the schools mental responsiveness and effectiveness At a 1966 meeting which dealt with of public administration. The comment in renewing the city and its social and stateuniversities and public affairs, cultural structures.Small towns and John Corson listed five reasons why the rural counties need technical assistance *Governorof Idahofrom1954 American society increasingly turns to and information to help them guide phys- through 1966. He is currently practic- the academic community for aid on the ical and human resource development ing law in Boise, Idaho. vitally important problems of building so as to secure for their citizens their

21 proper share in the material and non- lem-oriented approaches is both much material wealth of our nation. And state needed and difficult to accomplish. crovernments need assistance in order to A second institutional difficulty lies achieve full partnership with the federal in the interpretation of university ob- and local governments as they imple- jectives.In the face of demands for ment their constitutional role of assuring general education for a growing pro- statewide policies and services of high portion of our society and of demands quality. for producing at the graduate level Trained Public Administrators teachen and professors for the future, Are Needed can a university acknowledge as a major The long-range viewpoints and activi- objective the training of public adminis- ties to which the university can best trators?I contend that they must. Our contribute include training people to society is desperately seeking the talent perform the tasks of the various agencies that will better our cities, improveour of state and local government, advising schools, lengthen our lives,overcome public leaders on alternative plans of ac- racial tensions, and find solutions to in- tion, helping them to weigh the conse- ternational ills.It has always been a quences, responsibilities, and there- ttv., major task of our universities to provide sources which the alternatives require, trained leadership to meet the require- providing knowledge of trends and de- "In the field of government and ments of a changing society. They should velopment procedures, and developing public administration, universifies now enlarge their interest in the training and conducting various services for the can serve, and I think they have of the professional and the technician to been serving. In a lot of these areas citizens of the university's community. include the urban field, and thenew re- we stand on frontiers . . . we have With the growing complexity of prob- quirements of state government. A great lems facing public administrators, the a task ahead to make democracy work at the grass roots." shortage of well qualified personnel al- welfare of the people is increasingly de- DR. HENLEYCALIFORNIA ready exists and it will continue to grow. pendent upon the wisdom, the integrity, In public administration we are train- and the farsightedness of those adminis- \. ing far too few executives, and the uni- trators. The education of today's public 1. The professionalandtechnical versities bear a major part of the blame. executives must go beyond the under- knowledge required to direct the work Aside from the overall education of standing of position classification, pro- of their agency; future public employees, universities can cedural analysis, the performance bud- 2. The knowledge and abilitiesre- offer specific pre-service and in-service get, and human relations, important as quired to lead and manage the work of training programs designed to give em- these are.It must involve an under- subordinates; and ployees the information and skills need- standing of the forces and the directions 3. The knowledge and abilitiesre- ed for providing adequate and efficient of society, the interplay of scientific and quired to understand and to deal effec- serviceingovernment. Pre-service sooial development and of public and fively with the broad ramifications of training could include the following: private activities, the methods of antici- their agency's program in terms of its 1. Internshipsa program which re- pating and evaluating the consequences broader social implications and of its quires undergraduate or graduate stu- of actions in one field upon other fields, effect upon other agency programs, other dents to work part-time or full-time for the goals and methods of institution- governments, and the population as a a definite period with some government building and institution-changing. whole. agency. To be effective, therefore, the uni- 2. Field-Work Programs which "One of the major reasons for versity contribution to the education of place students in realistic life-style situ- the burgeoning welfare and the ur- these administrators must emphasize the ations for useful work experience. ban riots is our horrible education broadening, social, and interprofessional 3. Management Trainee Programs in the urban ghettos. Our univer- topics, leaving to on-the-job training thvlemphasizepracticalexperience sities simply are not training the such staples of public administration as co,:-!cl with tollege or university train- kind of teachers we need to send job classification, designing of tests, the into those areas.This is the pri- maintaining of public accounts, the con- mary publicserviceuniversities tracting.for purchases, etc. should get into." "The suggestion of a marketing Unfortunately, many universities have program, started by universities, their own institutional obstacles to the intrigued me. That is an excellent SENATOR EASTHAM development of such a program. Fre- idea. But can the universities call NEW MEXICO quently, they suffer from the same kind their products back like the auto- of compdrtmentalization and rigidity mobile companies do and do a little The qualifications required of today's among their disciplines as governments fixing up on the product?" public administrators may be divided in- themselves suffer among their jurisdic- to three rough and overlapping cate- tions and functions. The provision of DR. BROWNEARIZONA gories: cross-disciplinary fertilization and prob.

22 4. Program DevelopmentTraining in specific fields, related to community development, developed by a college or university. In-service training, designed to im- * riebrof prove the present employee's performance could include short courses, work- shops, seminars, institutes, and lectures. Some Training Programs The Graduate School of Public Af- fairs at New York State University recently initiated a Public Executive De- velopment Program to assist in the con- Municipalities.Thecourses,which The clearinghouse functionis pri- tinuingprofessionaldevelopmentof range up to 12 weeks in length, are marily a communicationsrole both governmental executives inthe New held in various locations throughout within the university and between the York State Service. The program's ac- the state. The course subjects run the university and community. Within the tivities include: one-week institutes de- gamut of basic municipal administra- university this involves learning the re- voted to the study of the internal and. tive areas, and include such topics as sources of the university, finding the external environments of public admin- assessing, municipal court clerk's duties, people who have special expertise in istration;a weekly management semi- zoning, subdivision control, real prop- potential problem areas.Outside the nar for senior officials; a workshop on erty appraisal, fire prevention, urban university,it means providing some techniques of quantitative analysis; and renewal,financeadministrationand point of contact in the university to a series of specifically designed insti- others. which anybody from state or local gov- tutes for individual agencies covering These two programs are examples of ernment can come to fmd out whether topics of special concern to the agency what universities can do to assist local the university has any help to give on such as management services, conduct and state governments to meet their this problem and if so, where. of agency field operations in varying leadership responsibilities by develop- The counselor and consultant role socio-political settings, and public rela- ing adequately skilled personnel. takes such forms as preparing infor- tions. One-week institutes will offer a It's time the academic community mation and materials for governmental curriculum of studies in policy-oriented of the West took note and followed suit. agencies,advisinglocalcommunity and technique-oriented subfields includ- groups and civic and welfare agencies, ing management science,behavioral The University as Advisor in and serving -as an intellectual resource science, and policy science. In addition, Government within the university. The university's intensive programs of one- and two- Let us turn now to the university's role as a counselor and consultant is week duration will be offered in special role in advising public executives on typified by the Municipal Technical Ad- areas such as planning, progranuning alternative modes of action and help- visory Service on the campus of the and ludgeting, and principles and ap- ing them to weigh the consequences, re- University of Tennessee and the Mary- plications of analysis. sponsibilities, and resources which the land Technical Advisory Service, which Local officials in New Jersey benefit alternatives require. was created in 1959 as a division of the from the in-service training courses and This function of the university can Bureau of Governmental Research in seminars conducted by the Rutgers be implemented in three ways: the uni- the College of Business and Public Ad- Bureau of Government Research and versity as a clearing house;the uni- ministration of the University of Mary- the University Extension Division, in versity as a counselor and consultant; land. The Tennessee agency is author- cooperation with the State League of and the university as a convener. ized by law to furnish technical, con- sultative and field services to municipalities in problems relating to fiscal administration, accounting, tax assess- ment and collection, law enforcement, improvements and public works, and in any and all matters relating to munici-

, pal government. State government, too, benefrts from 4.; universitycounseling and consulting services. For example, the University of Indiana conducted a study of the state's tax system which was designed to provide the state a series of alternatives

'1,1444' from which to choose. The New York LegislativeInstitute,establishedthis

NIVONIMMIM

= te loor4. year, is authorized to conduct academic of Iowa's Institutes of Public Affairs and organizesatelliteinstitutesfor and research programs, establish a li- and the League of Iowa Municipalities. specificallyassigned missions.These brary on legislative systems, publish These are annual meetings where gov- satellites will use every method avail- books and periodicals, assist in the ori- ernment officialc assemble with leading able to promote improvement and stim- entation of new legislators;and, at the academicians to examine the forces that ulate action in their particular field of request of the legislature, provide assist- are shaping our urban communities. state government responsibility, from ance in improving its management and In the clearing house, convener, and constitutional reform to transportation, operations. The North Carolina Insti- counselor and consultant roles, the uni- from mental health to conservation and tute has been an informational resource versity serves as a broker as Webster's recreation, and several dozen other state to lawmakers since 1935. Dictionarydefines the word:"Any functions. agency or intermediary, as a commissioner, messenger, or interpreter." But the university has a more direct role ill,of At, to play inproviding knowledge of trends and development procedures in order to improve and assist the operations of state and local government. Terry Sanford, former governor of North Carolina, wrote: "From my ob- servations of a number of states and my own experience in the governor's office, I have concluded that one major weakness of the states is that too often state government is flying blind. Gov- A,.7* (..i ernors and state legislators, with the wL best of intentions for improving the effectiveness of state government, fre- "The academic community can "You about one of the definitely furnish leadership in co- quently have difficulty knowing where noblest of all human undertakings, operation with the whole communi- they should lead the state. When they that of building a civilization. A ty. ..I assure you that universities want to lead, and have the capacity to civilization may begin in two ways. will not hesitate to join in develop- lead, they are not quite sure how to It may come down from the upper ing conferences, institutes, and vari- chart the course." ranks of a society and find its way ous other mechanisms of getting the When you have spent 12 years in a to the bottom, but all fine civilza- needs on the table if they are re- governor's chair, you understand only lions begin at the bottom, not at the topat the cottage, not at the quested to do so." too 'well the validity of Sanford's thesis. castle . . . the colleges and univer- DR. JUANITA WHITE Universities are uniquely equipped to NEVADA sities are missing the boat. . . . In provide fresh ideas that can help meet Harlem you see the results of what the requirements of today's changing is happeningthe breaking down The convener role involvessponsor- society. of the civilization." ing meetings, public seminars, andcon- THE INSTITUTE OF THE STATES SENATOR LENNART ferences either on aninformal, one- State government will surely benefit WASHINGTON shot basis, or on a more formal, insti- from a recently developed project which 1 tutionalized basis. John Bebout, direc- draws upon the resources of universities The institute would suggest standards tor of the Urban Studies Center at Rut- and experienced state administrators in of performance, educate the public, as- gers, says that "The very fact that the the search for new devices and new in- sist individual states in planning and university is recognized as an objective stitutions to guide the states in action promoting, draw up a blueprint for institution and that its assembly places and incentive for greater effort.The improvement (with alternatives taking are therefore neutral ground for many Institute of the States is the outgrowth into account varying situations in the protagonists often makes it easier for of "A Study of American States." The several states), and generally drive for people to come and reason togetheron institute will provide a means by which upgrading particular state responsibili- a call from a university than on a call the states can create their own incen- ties. from some other agency." Thecon- tives for actior and provide themselves vener device is especially useful for in- with the best information and thinking The satellite institutes will be located volving top policy makers and social in the various areas of state responsi- on the campuses of various universities, scientistsindiscussingeitherbasic bility. with th: faculties of appropriate disci- problems or some imminent public pol- The Institute of the States will be plines acting as both participants and icy decision. An example of this de- directed by a small board, with a staff advisors. These will give it access to the vice is the annual Urban Policy Con- of two or three people. This parent or- latest thinking in the academic world, ferences cosponsored by the University ganization will suggest, create, promote, unrestricted by any particular discipline. Thus, the institute will not be a concerned with urban development, the UNIVERSITIES ARE ACCEPTING prisoner of the economists or the politi- urban observatories will be guided in THE CHALLENGE cal scientists, or the sociologists, but their categories on data collection by The university scholar has several would draw upon the strengths of each inunediate and long-range policy con- advantages over the urban practitioner in developing a balanced approach to cerns of municipal officials whose cities or policy maker indealing with the the problems of the states. they are watching. The observatories fundamental problems of the city. For In addition to drawing on the 're- will operate as a network linked by one thing, he is free fromthe pressures sources of the university, the institute common agreement on types of informa- of the day and can, therefore, pursue tion of mutual interest. basic lines of inquiry, suggest new ap- "..today the average citizen In June 1965, the observatory idea proaches to old problems, and 'inject cannot comprehend the problems was tested at a conference held in Mil- new thrusts that would be politically facing him, nor can the legislators, waukee at the suggestion of Henry unwise for a public official to under- nor the governor. This is why we Maier, mayor of Milwaukee and presi- take. He is also better situated to en- need the sort of liaison that we dent of the National League of Cities. gage in a retrospective and evaluttive are talking about today." The mayors and urban specialists who processthat is, looking at the process SENATOR McCORMACK attended agreed that a working rela- of chain reaction, from situation to pol- WASHINGTON tionship between city hall and the uni- icy response to policy action to results versities was needed, and subsequently and to feed back from a survey of the will benefit from the experiences and a network of 14 cities was designated. results to an evaluation of the policy. ideas of former governors. With their Out of this proposal may emerge a re- Because the university scholar is not wide acquaintance across the nation with definition of the research function of tied to the immediate solution of urgent the key policy makers of state govern- the university, since its applied aspects practical problems, he has a better per- ment, these men will know how to look will have a greater appeal to the, city spective. He can view the various ele- for the best information and guidance, practitioner than the theoretical con- ments of the urban scene as a part of and will be in an unusually good posi- siderations associated with more tradi- a whole and can identify relationships tion to present to the citizens of the tional scholarship. and crosscurrents for what they really various states incentive and vision. At the Milwaukee conference, ways are. The concept of the Institute of the were discussed in which comparative Some universities have moved be- States became a reality in the spring of research could develop an ideal ap- yond the training, research, and broker- 1967 at the University of North Caro- proach for determining needs in munici- age roles described above. InThe City lina at Chapel Hill. The institute 'is pal service concerning the best method and the University, J. Martin Klotsche, focusing on current state planning de- of disposal of garbage, the number of chancellor of the University of Wis- vices, with the aim of encouraging the collections per week;the number of consin at Milwaukee, challenges uni- individual states to start the significant policemen needed; and the relationship versities to actively participate in rede- upgrading of the art Of long-range between the number of deaths by fire velopment, rehabilitation, and conserva- planning, thereby developing sort of a and fire escape requirements for dwell- tion programs where needed in cities. "guidance" system for the states. ing units. It was suggested that data on The University of Missouri employed specific questions, uniformly gathered a Negro home economist to serve as an URBAN OBSERVATORIES fromcomparablecommunitiesand urban agent in a low-income, predomi- A similar device, designed to provide banked conveniently so municipalities information useful to urban decision- nantly Negro neighborhood in Kansas could draw on them as needed, should be City. The program sought to determine makers has been under consideration available. for several years. This is the "urban observatories" concept, which was first suggested in 1962. The nationwide network of observatories would serve as collection points of basic information on urban developments. They would also do policy-oriented research on selected majorissuesof directconcernto mayors, city managers, and others on the firing line. The studies would be made available to local officials who need hard knowledge in political, social, and economic areas of city development as a basis of policy decisions on such problems as urban renewal, transportation, finance, and levels of service. Staffed by competent urbanists in urbanstudiescentersatuniversities whether the approaches used successfully THE NEED OF PUBLIC Naturally, the duty of improving the by home economistsinruralareas UNDERSTANDING citizenship of Americans cannot rest could be applied in an urban setting. solely on those who teach. Others The final role of the university that I family, church, parents' groups, com- The project was regardei as successful shall discuss is that of educating the and the dean. of extension at the uni- munications media, and public officials citizens of this country to create a great- also have substantial responsibilities. versity believed that the home economist er public understanding of the prob- effective in the city than Educators, however, must accept the was even more lems facing state and local governments. main challenge and must recognize that in her rural assignments. An essential component in community they have the main opportunity to in- The State University of New York betterment is the concern of the private three store-front crease the awareness, sensitivity, and at Buffalo has opened citizen. Greater public understanding of slum areas of Buf- civic interest of our citizens. centers in the 'Negro stateandlocalproblems,possible falo and Lackawanna. The purposeof courses of action, results of scientific in- Many Americans do not fully under- the centers is to bring informationand vestigationsand demonstrationpro- stand the operation of our federal sys- expertise from higher education into jects will improve the quality of public tem or the relationships between the fed- the Negro community and provide pro-, decisions. The university can do much eral government and state and local cedures for the universities and colleges through publications, audiovisual aids, governments. They are unaware of the to learn more about the community, not and the mass media to disseminate high limitations imposed upon the federal ex- through traditional research but through qualityobjectiveinformationabout ecutive branch by the Congress and the involvement. public problems and thus materially courts and by the political strengths of The centeris also working closely improve the climate in which decision state and ,local leaders. Many people with the dean of the medical school and is taken. have a low opinion of their public serv- members of his department, in the de- The final, but certainly not least im- ants and of public service. Yet only an velopment of comprehensive medical portant task of today's university is alert, informed electorate can guarantee outposts" designed not only to meet that of producing concerned citizens the quality and competence of public community need., but also to improve who comprehend the principles and officials. the quality of medical education. The structure of our government, show prop- it outpost"concept also includes such er concern for serious publicproblems, Courses in state and local government services as law, education, and social and are committed to helping solve must be made as relevant, as interesting, welfare. Thisprojectillustratesa those problems. Two thousand years and as attractive as courses in interna- special function of the center;that of ago, Aristotle wrote, "Ail who have tional relations. Then citizens will real- helping to bring together various aca- meditated on the art of governing man- ize the importance of these levels o; demic disciplines in a cooperative ef- kind have been convinced that the fate governments at all times, not just when fort. Columbia University recently an- of empires depends on the education of they receive a tax bill, or when the nounced a $2.7 million program to im- youth." He has been ec..oed ever since. snow is not plowed in front of their prove the educational, housing,health, Today, the increased necessity for well- homes, or when their favorite fishing employment and cultural opportunities informed, motivated citizens requires stream becomes polluted. Greater pub- of Harlem. Major projects in the pro- that educators produce citizens who lic understanding of state and local gram include:upgrading the quality have the ability to analyze and reason problems, possible courses of action, of curriculum in Harlem schools and and who have the commitment to act results of scientific investigations and aiding their"effective"decentraliza- within our political system to achieve demonstration projects will improve the tion;creationofanexperimental the social goals of the nation. quality of public decisions. Columbia division for adults and school . dropouts who need further education to get new jobs or advance in present ones; establishmentof anindustrialand commercial development association to ,

help Harlem businessmen get started or .....111111111111 611. expand their small operations; training of residents as skilled medical technicians;detailed re-examination of Har- lem's housing requirements with maximum participation by the area'speople; legal assistance to the poor by "highly- qualified" Columbia Law School students; and enlargement of Columbia's role in the cultural activities of Harlem. If the universities really want to "re-

late" to the communities they serve, the r ft crisis of the cities is challenge enough.

26 IF NOT THE UNIVERSITY, society's major ills. We have said that WHO? a university cannot be true to its own values if it does not accept these responsibilities. So let us now "set every These are some of the reasons why sail" for university service for, as the American society increasingly turns 3 John Corson said "If not the university, to the universities to aid with theprob- what agency will accept the responsibil- lems and needs facing the country. We have suggested some courses of action ity for seeking out and applying the thatwillshape the for a university which is willing to ac- new knowledge society in which our grandchildren NV cept increasing responsibilityfor mov- du, ing ideas along the road to action, the live?" respons'ibility for learning how to de- It is but one more case of not what velop the knowledge needed and to apply they can do for us ...but rather what useful knowledge in the solution of we can do forthem!

DR. HARTUNGIDAHO

Comments on Governor Smylie's Paper

Governor Smylie touches on all of Governor Smylie puts it in terms of the traditional roles of the public uni- theuniversity's obligation to create versity in Americathe role of educa- greater public understanding, to produce tion in its classical meaning, the role of concerned citizens who comprehend the research, and the role of public service. principles and structure of our govern- His emphasis, understandably, is on ment, to produce citizens capable of , the last named role, that of public ser- analysis and reasoning and acting. vice,"the responsibility for moving The Truly Educated Person ideas along the road to action"to use He is describing the truly educated his words. He concludes his paper with person, and the university fails in its an articulate exposition of the univer- larger responsibilities to its student no sity's major role or at least what I per- matter how perfect his technical training ceive to be the major role--that of lib- and proficiency may be, if that student eral education of the student whether is not articulate in his speech and in the student be on campus or offliberal writing, and is not able to think ration- in the meaning of those who first used ally, logically, and objectively or is not the term more than a century ago in its able to discern the difference between application to American education. fact and opinion. I should add that the To these pioneers in public educa- student isn't educated unless he knows tion, who, like Thaddius Stevens held ho w his government operates, unless he WILLIAM E. MORGAN that "Ignorance is more costly than is acquainted with the -z.ulture of which President, taxes," the term "liberaleducation" he is a part, and unless he has knowledge Colorado State University meant to "liberate one from thebonds of, and a working understanding of, the of ignorance." basic scientific conceptions that under-

21 gird his society.Incidentally, it is a solve a particular problem--which, in- respond to his indicatment of schools global society for this generation of stu- cidentally, is not the way campuses are of public administration. The only such dents. organized. They start off to get an ex- school with which I haveeven a faint It is this latter point that explains planation of the really fundamental na- acquaintance is the Harvardprogram in one of the campus difficulties to whioh ture of the problem, then the ream- public administration, and Iam under Governor Smylie refers early in his mendation of what to do in solving it the impression that its graduatesare paper, namely the "compartmentaliza- usually comes easy. able practitioners of the artas wellas tion and rigidity among the disciplines Importance oi Scholarly Mort the scienceof making the executive similartothejurisdictionaland What I am getting at, in devoting so branch of government work. functional separation from which gov- much time to Governor Smylie's identi- But public service in all its forms is ernments suffer." Acction of one role of the university, is the general topic of this session of the Knowledge is Universal that I want to emphasize the paramount Legislative Work Conference. Governor in Character importance of the traditional role of Smylie recognized that, though, under- There is a certain element of fiction scholarly effort. standably, he chose to emphasize the in the separation we make between the Only through this avenue may we in- category of the public administrator. physical sciences, the biological sciences, sure the stand-by ability of the univer- I could, I believe, say some reassuring the sooial sciences, the humanities, and sities to serve the needs of sooiety. One things about the university's contribu- between all the subcategories under each of which, indeed the first one, he points tion here in the West in other areas of of these main areas. out to be "the training of public ad- public service besides that of the public The harried campus administrator ministrators." He states, "We are train- administrator. Governor Love alluded uses the same organizational devices as ing far too few and universities must to this last evening in his comments does the government executive in trying bear a major part of the blame." regarding some of the traditional activi- to pull together people who, for one From this reservoir, of educated people ties in the land grant instithtion pro- reason or another, have been lodged ad- I am talldng about now, must come, too, grams. ministratively in separate departments: those who might provide answers to I could testify to the interest thisgen- the devices of interdepartmental commit- public administrators who seek solutions eration of undergraduate students has in tees, institutes, task forces, single prob- to some of the ugly areas in our lives to problems that trouble the large society lem teams, operating on a one-shot basis. which both Governor Smylie, today, and an interest that draws many of them to Actually the academic community, in Governor Love, last evening, referred in jobs of low remuneration that help meet performing its teaching function, does a their comments on the deterioration of the needs of a dynamic society through very respectable job in coping with the metropolitan areas and the avalanche of public or community service. artificial division of knowledge into a difficulties that literally overwhelm us As for the work of the schools of hundred or more academic departments in the urban field. public administration, about which I've through employment of the organiza- I agree with Governor Smylie and already admitted limited knowledge, I tional device known as the institute. Governor Love that the universities are should think their Alirectors would wel- Consider, for example, the subject of obligated to contribute to the supply of come the suggestions made by Governor genetics and the problem of teaching it public administrators, to provide tech- Smylie on such things as internships with on a complex university campus. There nical assistance to them, to offer advice government agencies, field work pro- are plant geneticists and animal geneti- on alternative courses of action that may grams, management trainee programs, cists. And there are a dozen academic be followed in dealing with certain prob- institutes,seminars,consultativeser- departments with an interest in the sub- lems, together with an analysis of the vices, and certainly the activities en- jectagronomy, botany, forestry, zo- consequences of this course or that visioned by the Institute of the States ology, biology, plant pathology, animal course. a new development which I learned pathology, physiology, both plant and Governor Smylie didn't qualify his about for the first time in his paper7as animal, and now and then you run call for the university scholars to pro- well as the activities contemplateci for across a geologist who gets iound up vide the urban practitioner with advice the centers for urban studies, an older in the subject as he strdies fossils. on alternative courses of action by say- concept familiar, I'm sure, to all of us. Result? You bring all these people ing that they should offer it when re- Speaking from the point of view of a into fruitful collaboration by creation quested to do so. campus administrator familiar with the of a genetics institute to guide instruc- I assume that Governor Smylie, hav- application of similar devices and tech- tion both at the undergraduate and grading devoted so many years to service in niques in other sections of the public uate levels. an elective office, realized thaNniversity service arena, I should think that any Of course, the most spectacular exam- scholars probably would offer this ad- moderately well-financed school of pub- ples of accomplishment by people whose vice whether he requested it or not. The lic administration should be able to put university training has emphasized deep giving of unsolicited advice is in the all of Governor Smylie's suggestions in- though necessarily narrow penetration category of a sacred faculty right and, to practice with credit to the university of their subject have been in the re- in keeping with its sacred character, it and with tangible results in meeting what search field.Countless cases may be is practiced religiously. he so cogently refers to as "the needs of cited of research teams, organized to I am sorry that I am not qualified to the total society."

28 1CHE

of the buyer. mission.Certainly 75 years agorail- ler, marketing on the needs roads were a growing-.industry. Yet to- ...What a (marketing oriented com- determined not day, most of them are prettywell on pany) offers for sale is by the seller but by the buyer.The sell- their backs. from the buyer in such Why? What was the problem?Pro- er takes his cues agit° the product becomes the con- fessor Levitt identifies it asbeing an a way that the marketing effort, not error in management, anerror in their sequence of perception of their function.The rail- vice versa." Let's take a classic example ofwhere road company managementsconceived usually of their function as being theoperation this happened. Henry Ford is network credited with genius for massproduc- of a fleet of rolling stock on a think that he of railroad tracks. In otherwords, they tion, and we frequently because thought in terms of their productrather produced the $500 automobile when in than thinking of their function in terms he invented mass production, around. He of supplying transportation,that is, in fact, it was the other way marketing. He conclud- terms of meeting customerneeds. I am was a genius in $500 auto- sure that youwill all agree that we have ed that if he could build a mobile, he could sell masses of cars, and no less needtoday than 75 years ago, in he then challenged his engineers to de- rourrrimigiN11111,, fact, many, many times more,for trans- velop an automobile and a, waypf pro- portation of people and offreight. ducing it so that he could sell it for $500. Another typical example is that of FRANK W. YOUNG His product was the result of his market- Hollywood and the crisis that it went Assemblyman, Nevada ing efforts. through with the ',advent of television. A Marketing Approach We were told last night that the part Yet today, Hollywood producers, having recognized that they weren't really in the for Universities of the nation that we represent is grow- movie-producing business, but rather in Levitt goes on to say that "Marketing ing at approximately double the national the entertainment business, have an even views the entire business process as a average. It is ratherexciting, isn't it, to more boomingbusiness than under the tightlyintegrated efforttodiscover, live in an urea of the nation that is un- older, more limited definitions. create,arouse, and satisfy customer dergoing such rapid growth, but don't You might say the same thingabout needs." I would urge that a marketing you sometimes havethe subtle, sinking approach be instituted by our universi- feeling that this growth in and of itself the oil industry. Today, I suspect, they think largely of the industry's funtion ties. It would seem to me that that in a may be masking some waysin which as being discovery, recovery, refin- sense is what GovernorSmylie is urging we aren't reallymeasuring up? that our universities look upon gov- A Lesson from Business ing, and distribution of oil pr.oducts, when I would guess that they are in the ernment as one of their customers, and Professor Theodore Levitt, in the Har- energy business. that through involvement, and I would vard Business Review ofJuly-August, The belief that profits are assured by underscore and capitalize Involvement, 1960, under the title "MarketingMy- an expandingand more affluent popula- discover government needs. opia," wrote that there is no suchthing Legislative Internships industry, only industries tion is dear to the heart of every in- as a growth dustry. It reassures us about the future. He has mentioned internships.I organized to create and benefit from I would suggest that increasing popula- would like to see more legislativeintern- growth situations. I would like to elab- tion and therefore justification for in- ships and have invited the University of orate from ProfessorLevitt's article and creased budgets may also be, in a subtle Nevada to establish a private project then draw some parallels from business v, reassuring tothe universities. this next session in Nevada. The concept to the university'spublic service. He Levitt carefully points out the differ- is that the university, either through an points to railroad companies as aclassic and marketing, organization like the Institute of States example of industries who, under a ence between selling "Selling focuses on the needs of the sel- or through separate action, can actively. growth situation, fail to recognizetheir participate in long-range planning. As and racial crisis through involvement. rise of programs like the Manpower a freshman legislator, I have been im- I think that the universities need to do Development and Training Act indicates pressed by the very distinct need for more of what industry is now being that we have really not been sensitive more long-range planning in state gov- asked to doto search harder, to find in our institutions of higher education ernment. I believe that our failure to do those minority students who, under the to the local level and to the local needs. our long-range planning homework is exciting challenge of quality higher edu- I would guess that a university that is one of the main reasons for the shift in cation, will blossom and become the truly customer oriented, that is, citizen the balance of power to the federal gov- leaders in their communities tomorrow. need oriented, and meets these needs ernment. I think that in our schools of education will have a bright future and will write Involvement we must spend more time preparing a new page in the history ofhigher edu- Lastly, I was delighted to hear Gov- teachers to meet the challenge of the cation. I think, also, that the universities ernor Smylie refer to the place of the clagsroom in our deprived areas of our would solve many of their problems with university in actively meeting the urban cities. I we Id hazard a guess that the the legislature by taking this approach.

We have been experiencing in the last A Place to Start 5 to 10 years aas someone has put it First, I would like to see that in each yeasty ferment in state and local gov- state we find out what we have in the ernment, a revival of interest in having way of state and local governmentnot the states assume their proper role in the stop with the theory and not continue to federal system. This was carried on in teach the typical state government be- years past by such organizations as the cause no state is typical, but most of our National Municipal League, then picked textbooks, such as exist, talk about a up by the National Governor's Confer- "typical state government." ence, the National Legislative Confer- I received my college education in ence, other organizations of the Council state government in the state of Texas. ot State Governments, and recently The Model State Constitution showed a joined in by foundations and university- wonderful chart of the state government oriented agencies and other civic groups of Texas as the worst example of a state on a regional or national basis. government. That was really a comfort

G, For years we have been emphasizing while going to school.I outdid them the federal governmentpublicly criti- years later while working in graduate cising it and sometimes privately em- school by developing a chart that shows bracing it. On the university level it is it even worse. The purpose of my chart a much more glamorous and easy sub- was to show the poor lines of communi- ject to teach and much safer than delving cation overlapping the existence of agen- JOHN C. DOYLE into what we call with a shrug "state and cies that had technically gone out of Director, Western Office local government." This new direction, existence 50 years before but were still The Council of State Governments this new emphasis on revitalizing state having members appointed by the gov- It is a pleasure to meet and listen to government, is a happy one.I think ernor. No one would dare tell the gov- Governor Smylie, who has had a vast sometimes, though, that we are misdirect- ernor the agencies didn't exist, and the experience as an able and productive ing our thrust. We are starting out at members of the boards were rather public servant and who continues to a higher level than maybe we should. pleased to have a title.I used lots of exercise his abilities in the general ser- Everybody is in the act nowadays. It colors and bold lines and dotted lines vice of the public. I would say through is both flattering and disconcerting, and and dash lines, and soon thereafter I you, to Governor Smylie, that "he's my we may suffer from so many embraces, departed the state of Texas with fond boy." I can hardly disagree with any- dissections, and analyses that we don't do hope that this very colorful chart show- thing he says, although I would em- anything really productive except oc- ing the complete chaos would influence phasize how to accomplish the goals he cupy ourselves with something to do and somebody in the group to take a look at seeks. to get public attention. the state and do something about it.I 30 think they have done a lot there. grants and to give professors an oppor- me. Maybe some of them aren't well I'd ask you, using this basic tool of tunity to publish learned monographs. educated, but the breadth of knowledge the text on state government, which of There is a lot to be done. I am rather they have to have from the poorest of the states represented here from the West encouraged by it, but I do emphasize resources is just astounding.Where can have, in their state sponsored colleges that, first, let us know ourselves, then they go to read to find out about that and universities, a sound, current, read- we can compare ourselves withothers. state government they are nowentered able, useful textbook on their state gov- in the act of practicing? What does the ernment?I think it would be rare to A Need for More Understanding governor do? Look at achart done 10 find one. Who teaches these courses, if years ago which was meant tosimplify Legislatorsandadministratorsin things to the point of being meaning- they are taught at all? Is it the junior state government, particularly the new less? Call in department heads who only professor, the part-time instructor who ones, must wonder what they got into have their own narrow point of view, takes it as a penalty and pass% on his after going through the trials of nomi- and their own narrow prOgrams? I think lack of enthusiasm to the student?I nation and election.I believe if you it is a rough go. I never cease in ray ad- know, on a much smaller scale, as Gov- would go to any state capitol in the miration of these people who enter into ernor Sraylie mentioned, the difficulty West, and throughout the nation, you this "pit" trying to do something while of recruiting people who know anything would find that one agency doesn't being harassed on all sides and therefore about state government, much less who know what the agency next door is really criticized on all sides for not knowing are interested in it. doing and why. Maybe the agency something that no one else seems to doesn't know itself. No one is looking know either. Working in the refreshing atmosphere at them very closely. It is really a trial of a potential new state, Alaska, we had for a governor and a legislator to take Universities Can Help to go outside to find people who might the big picture. be somewhat aware of state government So I turn to the university as the most recruiting attorneys, graduate students Probably many of you educators have, logical spot, the most resourceful spot, in public administration, economics, and and legislators of course have, sat in for information on that state govern- political science. Maska was lucky in when departmental heads and representa- ment, not the typical state government, that respect because it had a certain tives of public and specialinterest but on their local government as it exists, romancenew state, wild and woolly groups come in seeking appropriations not as it ought to exist. Look at what it North, the last frontier.Other states or new tax moneys or devoiding tax is so you can see what might be done, aren't so fortunate. moneys for their particular causei One then compare with other states and other group will arrive, possibly a college jurisdictions, other regions. Unless you president with his brief case in hand, Some students you would scare to do that, I think we are lost. We would along with an assistant, five minutes death if not bore them to death by men- depend upon the university to gather this before his due thnesay 10 a.m. The tioning state government. Where do they information, to go out into the public committee has been sitting for an hour life, to give counsel, whether solicited get this idea? Where does this lack of and a half or two. He makes his presen- or not, and communicate the information interest come from?I think it comes tation, if things work out right, shakes gathered. from our schools. How many schools hands hurriedly and pops out the door. have a professor of public administra- That committee has been sitting there In some states, possibly, the university tion? Are we talking about the public for hours and will sit for more hours or college could arrange,with a couple administration of the federal govern- listening to other good causes seeking of sharp professors who can communi- ment? Most of those texts include case more funds, less taxes, or something cate, who are interested and-informed, studies on problems of administration else.But the particular groups come to write a text or to get those brownie at the federal level, usually on the Na- and go, except for an occasional lobbyist points for publishing or perishing, but tional Labor Relations Board cases of of some breadthsay in laboror in also possibly the proceeds could go to the 1930's. It is rather discouraging. the chamber of commercewho will sit some good cause that would allow them Governor Smylie mentioned to us throughout it all to get thc big picture to use their official state time to prepare some developments, university-oriented, and to understand where his causeor the text. It could be a loose-leaf form. unfortunately mostly in the East. I hope the other causes fit in together. The Keep it up to date so that a legislator. that this afternoon Chancellor Lieuallen public administratorspeaking in terms and interested citizen could have a copy rill bring us some information on the of a governor, or the legislativecom- and find out what is going on. The uni- new school of public affairs and committees on finance., appropriations, ways versity has the intellectual services and munity service that the University of and meansmust look at the whole pic- resources to do the job.Governor Oregon has just inaugurated to deal with ture. Smylie has realerted us to the various training, counseling, and education on possibilities of service and contribution state and local governmental levels. Where Do Public Administrators on the part of the university. The states Other states I am sure are moving Learn the Job? deserve this of their universities and, in into this. Some states merely have paper turn, they will merit their just deserts organizationstoreceivefoundation How they get their education amazes from the states.

31 programs, management training pro- public problems, and are committed to grams, and program development train- solving them within our politicalsys- ing. He recommended in-service train- tem,observing thatfamily, church, ing initiated by the New York State Uni- parent, communications media, and pub- versity which includes instituteson public officials have responsibilities here. lic administration, weekly'minus for He said that education must accept the senior officials, work shops on techniques main challenge to increase civic interest and other topics, including planning, in citizens. programming, and budgeting systems. Colorado State University's Doctor Three ways the university can serve William Morgan not only reviewed Gov- are:as a clearing house, a counselor ernor Smylie's address, but also held up and consultant, and as a convenerthe the universities' responsibility forpro- first in the communications role, the viding for liberal educationthe tradi- second as a means of preparing infor- tional role of scholarly effort, which he mation, and the third as spon3or of semi- contends insureci the standby ability of nars and conferences. Governor Smylie the universities toserve the needs of spelled out how several states and uni- society. versities are serving city, county, and state governments, specificallylisting Dr. Morgan opened up one of the the institutes of state work. This group more debatable points of the afternoon will organize satellite institutes fora when he mentioned that university schol- HAROLD S. ZIMMERMAN particular field ranging from constitu- ars probably would offer their services State Representative, Washington tional reform to transportation, from whether requested or not, for he said, Your evaluation sheets convinced me mental health to conservation and recre- it is "a sacred faculty right practiced that you can listen faster than I can talk, ation. They will be located on college religiously." so let's review together for a few minutes campuses. A similar device, the urban Juanita Greer White provokedas the productive three hours of yesterday observatories,wouldservemayors, many comments as any other issue of the afternoon. cities, city managers, and other local afternoon when she said that the univer- Former Governor Smylie of Idaho ap- officials. They would tackle the mun- sity people will furnish leadership when . pealed to the universities to provide dane problems of garbage collection, asked, for it, but they will not attempt public administrators to help solve the police force size, and perhapssewage to force their ideas on legislators or problems of society, asking that govern- problems. other governmental officials. ment, industry, and universities abandon Spelling out the advantages that the their separateness and work together. university scholar would have in making Nevada assemblyman Frank Young Governor Smylie listed reasons why the recommendations to solve urban prob- provided what most ofyou felt was one university can help build a responsible lems, Governor Smylie cited the store- of the most significantnew ideas of the scciety: its staff, its buildings, and pres- front example of the State University of conferencethe application of Theodore tige;its human talent and discipline of New York at Buffalo where the outpost Levitt's thesis in marketing myopiato objectivity;itsconunitment tothe concept includes improving quality of the field of education and its publicser- search for new knowledge; its possession medical education, law services, and vice.Young urged the marketingap- of civilizing valuesfreedom, justice, social welfare services in urban areas. proach on the part of universities by humanity, and human dignity. Columbia University's $2.7 million pro- their looking upon governmentas a He specifically stressed the need for gram in Harlem was given in great de- customer through involvement withgov- human educators to train public admin- tail. ernment discovering its needs, specific- istrators to serve the urban field and the Governor Smylie also called on the ally mentioning internships, long-range new requirements of state government. university to produce concerned citizens planning, and the meeting of urban, Governor Smylie said that the training who comprehend principles and struc- racial, and slum clearance classroom should include internship, field work ture of government, show concern for teaching needs.

32 John T. Doyle, of the Council of State Senator Mike McCormack's comments Among unresolved issues that cropped Governments, urged that stategovern- that federal intervention has come be- up throughout the buzz session and also ment be revitalized, first by each state cause states were incapable of respond- on the evaluation sheets were these: the finding out what it has available, by ing to the crisis that exists today, and definition of terms, such as what is pub- improving communications between its because the average citizen cannot un- lic service; the role of the universities old agencies, and by improving instruc- derstand the problems he faces. Sena- and colleges seen by them and by citi- tion about state govermnent. He said tor McCormack specified public welfare. zens; the real problem of communica- that turning to the university is logical, Your buzz sessions and evaluation tions; more forceful expression of the for it is a resource to find out about local sheets focused on the fact that higher need for publicadministration pro- government as it exists today and to education involves more than the uni- grams; the broadening of our horizons; make state government meaningful. He versities and that there are services avail- how the college can approach a politi- suggested that a sound, readable texton able to the other colleges, community cian; the importance to educate for un- state government be written in loose-leaf colleges, and four-year colleges.The derstanding the character and processes form and be kept up-to-date. If the uni- difficult and expanding role of higher of democratic government ;is public ad- versity serves the state, the state will education insists that it provide public ministration the best training for those serve the university, he asserted. service and research and at thesame who are to solve future problems? How Provocator Ballentine Henley's ques- time teach students to be both pragmatic can higher education assume an activist tion as to the demise of democracy, with and theoretical. role in public problem-solving? How, government and university trained ad- There was a considerable disagree- specifically, can universities help legis- ministrators replacing the average citi- ment over whether the university should lators? How do we implement all of zen who may not understand the com- initiate solutions to government problems these ideas? plexities of modern day life or wish to or wait to be asked to develop the solu- The expression was made that we are concern himself with it, brought sharp tions. going to have to restructure the univer- reactions in your evaluations. He elo- As tospecifickindsofpublic sity as we know it today. quently declared that politicians and service the university should provide, As Edmund Burke said, all govern- public administrators can work together your evaluations ask that it be spelled ment, indeed every human benefit and as a team and that they must if democ- out in considerably more detail. You enjoyment, every virtue, every prudent racy is to survive. But he cautioned that urged strong need for better communica- act is founded on compromise and bar- tLey should know their responsibilities tion between legislators and educators. ter. That is what this session and this and avoid getting into each other's field. Frequently this came up and also the report iscompromise, consensus, some need for better teamwork. Over and commission, some omission. Technical over again you said higher education education has said that perhaps the most . . . politics is all around us. It needs to do a better job of selling itself valuable result of all education is the is the practical exercise of the art to the public. The lack of understanding ability to make yourself do the thing of self government. Probably the on the part of legislators and the public that you have to do when it ought to be worst thing you could say about an of the role of higher education wasex- done whether you like itor not. American citizen is that he isn't a pressed by educators. As Governor Smylie declared, letus politician. Everyone ought to be." Legislators, on the other hand, ask JOHN DOYLECALIFORNIA now set every sail for university service, for more understanding of state govern- for if not the university, whatagency ment and more services from universi- will accept the repsonsibility of seeking ties.There were sharp differences of out and applying new knowledge that Questions or commentson the floor opinion on whether the university should will shape the society in whichour ranged from:(1) Senator Lennart's respond to external or social require- grandchildren will live? caution that the building of a civiliza- ments as expressed by numerous publics, tion begins at the bottom, at a cottage, such as for the teaching in ghettos, and not a castle, recalling that the Greeks on whether the university is too costly, "No one should lay hands on had to go out and renew strength by too inefficient, and too removed from the universities except that he un- touching earth and that we all gain social economic problems that bother derstands and loves them." GOVERNOR SMYLIE-1DAHO strength by touching the earth to (2) elected representatives.

33. Section 4 THE PUBLIC'S CURRENT CONCERNS ABOUT HIGHER EDUCATION Jack M. Campbell

feel free to express the divergent and States colleges and universities and that even conflicting concerns of the diverg- 9 million students will be seeking higher ent and sometimes conflicting constitu- education by 1975.1 Colleges and uni- encies which you serve. As a former versities are springing up at the aston- public official, I find a great deal of perishing rate of one a week. A generation sonal pleasure in tapping someone else ago the goal was a highschool diploma on the shoulder and demanding, "What for everyone. Now the richer states have you done for me lately?"a ques- hope to provide within a decadea col- tion that university presidents hear as lege degree for every resident who wants often these days as politicians. one. I do not expect to voice any concerns The rapid increase in enrollments has this evening that are new to you, but lead inevitably to the growing domi- I hope they will be expressed in a way nance on the educational scene of the that will help you to think about some public-tax-supported university.More of them in a new way. Finally, I hope than half of all college and university my remarks will be more encouraging students in the United States attended than the address an Indian chief re- private institutions up to 1950.2 Today portedly made to bis tribal council. only 34 percent do so and by 1980 they One late fall day the chief called his will constitute only 25 percent nation- elders together and announced that he ally. The percentage iseven lower in I appreciate the invitation to talk to had news to give them some good and the western states. This shift in the pub- you this evening about higher educa- some bad. He said that he would give lic-private ratio is creatinga variety tion, especially with a topic like "The them the bad news first, which was that, of stresses and strains for educators, Public's Current Concerns" which gives due to mismanagement, the tribe would politicians, and parents. However, this me a wide range in which to roam. I have nothing to eat during the long nation appears to be conunitted to edu- am reminded of the story of how Oliver winter months except buffalo dung. He cational pluralism and to the view that Wendell Holmes handled the question then said, "Now for the goodnews diversity in control, in size, in source of fees and topics for public functions. we have an ample supply of buffalo of support, in areas of instruction, and He would reply, "If I select the subject, dung." even in quality is a source of enormous my fee is $150; if your committee se- educational strength. The days of the MORE PEOPLE ARE INVOLVED lects the subject, the charge is $250; IN HIGHER EDUCATION American college as a relaxed, intimate but in either case the speech is the community of scholars have disappeared 39 If more people are concerned about same. higher education than ever before in at many institutions to be replaced by a complex and sprawling community of I assume my topic permits me to act the West and in the nation, it is simply specialists, administered by dozens of the devil's advocate this evening so per- because more people are involved in executives,employinghundredsof haps I should preface my remarks by higher education than at any other time teachers, and serving thousands of stu- saying the -opinions expressed in this in history. Whether it is a question of dents. speech are not necessarily those of the the place of the students in their aca- speaker. Since the title does not specify demic community, the role of the faculty INCREASED PUBLIC which "publics" are concerned, I shall in institutional policy, the effect of fed- SIGNIFICANCE OF HIGHER eral grants for research, or the attitudes EDUCATION of the various publics, the factor of Higher education is increasing not *Governor of New Mexico from sheer size is relevant. I would like to only in size but in public significance ; 1963 through 1966.Currently Direc- avoid putting you to sleep with statis- not only in population, but in power. tor of the Institute on State Program- tics, but no discussion of the present sit- This situation has aroused concern in ming for the '70's at the University of uation nor projectionof the future many quarters for many reasons which North Carolina. He is a member of the course of American higher education I shall explore later this evening. In Advisory Board to the American Coun- can avoid the problem of numbers. It the words of Walter Lippman:"Be- cil on Education's study of systems of is estimated there are currently 6 mil- cause modern man in his search for higher education. lion young men and women in United truth has turned away from kings,

35 priests, commissars and bureaucrats, he not so much the dollars themselves as is left, for better or worse, with the the ties they have to big government and professors."3 big business and the temptations they One cannot speak intelligently of any offer to the intellectually pure in heart. new developement in this county), in As Ashby has noted "It is not the this decade without mentioning higher fear that universities will be robbed; education. Whether the subject of dis- rather that they will be seduced."5I cussion ispolitics, urbanization, sex, believe the Victorian termwas "com- civil rights, theology, cancer research, promised."After all, shouldn't poets art, law enforcement, poverty, humor, be in garrets and not mixing itup at space ships, the weather, or World War Washington committee hearings;and III, somewhere in the conversation you shouldn't the scientist spend more time will hear the name of a college or uni- in his laboratory and less time lobbying versity or technical institute. The topic Congress or state legislators? may be LSD, TV, or CIA, but the sub- The national government is expected topic is C-O-L-L-E-G-E. The new aca- to spend almost three "times as Much demic jet set has blasted the ivy off the next year as it did four years ago on campus walls, and the scholars can't re- education, and four years ago its was treat to their ivory towers because the DR. ALLEN-UTAH spending more than 164 billion. Edu- towers are filled with electronic compu- cation is being hailed as the nation's ters. educator, Sir Eric Ashby of Cambridge, major growth "industry," a "word that It seems at times there is no limit to modern educators must "adapt them- sends shivers down the spines of hordes American expectations in regard to the selves to communities where the wave- of students and alumni- and confirms competence and influence of higher edu- length of change is shorter than the span their worst fears that their school 'and cation. Will we outdistance the Russians of human life."4 Last year I gave the alma mater has become a knowledge in the space race? Will we find a cure commencement address at a university factory, or worse. When they hear re- for the common cold? Will we stop the in my own state wThere the head of one ports of professors and colleges compet- Chinese drive for world dominion? Will academic department in engineering and ing aggressively for huge federal and we be able to maintain our high stand- the sciences reported that not a single foundation grants, they are reminded of ard of living and to avoid depressions? course taught in his department in the story of George Bernard Shaw ask- Will America become a nation of drugs, 1960 was being taught at that time. ing an English duchess if she would orgies, and revolution?Millions of This professor at New Mexico State commit adultery for a million pounds. heads turn toward the new Mecca, the University said new information had When shereplied,"Probably,"he college campus, for the answers to these been added so quickly and traditional asked, "Well, what about five pounds?" and myriad other questions of per- material revised in so many ways that To which she replied, "What do you sonal and public importance.It hard- it Was necessary within the six-year think I am?" and the Irish cynic said, ly seems possible it has been less than period to reorganize all the courses and "We've already established that; now 10 years since Clark Kerr, then presi- write new titles reflecting those changes. we're negotiating the pr4ce." dent of the University of California, re- Ashby cites what he calls three justi- portedly said in jest that the three major CURRENT FEARS OF HIGHER fiable fears in regard to the grantsman- administrative problems on a campus EDUCATION ship game: are "sex for the students, athletics for 1. If federal support for specific pro- the alumni, and parking for the facul- Education is enjoying a new afflu- jects comprises too great a proportion ty."His current comment might be ence, which strangely enough also is a of a university's income, the tail can that it only hurts when he laughs. major source of concern. Perhaps it is wag the dog. The migration,.1,, of one LANDMARKS ARE CHANGING I am sure that many people involved in higher education today must feel like the pilot on a Hawaii-bound airliner who was asked by a stewardess as they flew high above the Pacific how the flight was going. He replied cheerfully, AIM "Well, it's this way, we're lost but we're making very good time." The old landmarks of society and academia appear to be disappearing m111.101,Wy. fast as leaders in education and government struggle to adapt to the new currents.In the words of an English

36 professor and his team, or the acquisi- Defense Robert McNamara told the Westinghouse; Raytheon; Xerox; tion of some massive governmentcon- House Armed Services Committee re- CBS; Burroughs Business Machines; tract can blow the whole institution off cently that "the Department of Defense and Packard Bell.Education editor course. supports nearly half of all the academic James Cass of the Saturday Review also 2. Massive federal aid to individuals research in the physical sciences and en- sees possible conflict between education or departments might divert their loyal- gineering now being done in American as a market and education as a human ty from the university toward the grant- universities and colleges.' process, and he complains that corpor- giving agency, or to quote scripture, To these concerns one might add the ate money is not searching out new and "where your treasure is, there will your public expressions of anxiety over the better ways to solve old problems, but heart be also." Is therea danger of the burdens imposed on college administra- too often is simply going into tradi- professor trying to stretch his loyalties tions by the Selective Service, teaching tional channels to grind out more of to reach the university which hires him, techniques developed by the Depart- the same.° the federal agency which supports his ment of Defense, and the effect of the Harrington warns, "America, whether research, and the guild of his special- Vietnam War on the attitudes and ac- it likes it or not, cannot sell its social ism, on whose opinion the professor's complishments of students and faculty. conscience to the highest corporate bid- prestige as a scholar depends? Some of your constituents, when not der.It must build new institutions of 3. Will the concentration of federal worrying about the influence of the mili- democratic planning which can make At the uneconomic, commercially wasteful, and humane decisions about education and urban living which this society so ..der.c.4 desperately needs."9 How about that for concern? It would appear that as an object of increasing outside pressures, the university has little chance to retainits identity and its capacity to manage its own affairs.Perkins of Cornell says bluntly, "The fact is that the university, which was conceived and has long been thought of as a self-sufficient community of scholars, now finds self-sufficiency a nostalgic dream.'° This leads us to questions concerning university autonomy and goals and a fine flock of related anxieties. What aid in a very few centers make it harder tary mind, are voicing concern over the are the roles of the president, faculty, forinstitutionslower inthepeck- recent efforts of private industry to trustee, student, and everyone else who order to acquire prestige? Reports that court or exploit your "guys in white has a pieco of the action, or thinks he 60 percent of federal grants for research hats."The president of Science Re- has? go to 25 percent of the universities search Associates, an IBM subsidiary, If the purpose of the university is, as naturally encourage thisfear.How- refers to this new development as the Perkins says, the acquisition, transmis- ever, coupled with this concern is the "social-industrial complex."He says sion and application of knowledge, what reverse fear of government distributing many corporations have found there is should be the ratio of one to the other? its favors on geographical considera- more profit in solving social problems It is charged that American universities tions, based on the pressures of sec- than in creating them. "Social causes have not faced the options clearly and tional and regional politics.Thisis which in the thirties were the domain of madedefensiblechoices,but have what miglit be described as the pork- college professors, labor unions, and blundered along in the paths of least barrel school of scientific development. student demonstrations are today be- resistance, accumulating research pro- Our variations of federal-phobia al- coming the new business of business," grams, encouraging publicatiori as the so include the fear of undue influence Mr. Sioencer adds. high road for professional success, and by the military establishment. How One of our public worriers, Michael giving the students whatever is left over can universities cooperate by provid- Harrington, describes the sudden outof personnel, time, and facilities. ing needed classified research while re- burst of corporate conscience as "men- Science has become the big, bad bully taining academic freedom?Will the acing."' He argues that satisfying social on the block occupied by scholars, establishment of military units in schools needs and making money are two dis- many of whom doubt that science has a lead to "military thinking?" The grow- tinct and often antagonistic undertak- monopoly on insight.There may be ing intimacy of soldiers and scholars is ings. He notes the so-called knowledge many forms ofintellectualactivity, the product of commendable as well as industry now includes, among others, these critics say, but the prestige of questionable Pentagon programs, but General Dynamics; AT and T; Gen- science has seduced scholars outside the how far should it go?Secretary of eralElectric;Time, Inc.;Phi leo; natural sciences into a fatal preoccupa-

37 tien with the scientific approachto sidewalks and police the parking lots. West coast campuses the aggressive pas- truth. The religious mystic, the poet, Presidents, like politicians, are supposed sivists and devoted activists make up a the artist, the musician may also dis- to be able to serve God without offend- relatively small portion of the student cover truth whether theyfitthe job ing the devil, not to mention the alum- population,theyarehighlyvisible, specifications for a scholar or not. ni, parents, donors, taxpayers, legisla- highly vocal, generally intelligent, and The dominance of teaching by re- tors, and football coaches. Those who they exert influence both horizontally search is another concern among the have the audacity to criticize presidents upon their contemporaries andvertical- academic public. Good teaching is an usually say they are too liberal or too ly upon their elders.College history end in itself but the rewards of prestige, conservative, too academic or too ad- shows that student riots are not a novel- power, and income go to the published ministrative, that they talk too much ty in higher education, but the riots research.Millions come more easily or talk too little, drink too much or not which marked the 19th century college for an electron accelerator than thous- enough, are too domineering or fail to lifewere more likepeasantrevolts ands for a secretary for a historian or exercise leadership. They have a sneak- against tyranny than like the present for personnel to teach freshman Eng- ing suspicion that deep down in his revolutionary movements." So while lish. heart, the university president passion. colleges were designed to familiarize The faculty should not only be en- ately believes that education is too im- tha young with the best of the past and couraged to teach but to participate in portant to be left to the educators or the hopefully to spare them learning every- the major policy decisions of their insti- public. thing again by trial and error, they tutions.As John Kenneth Galbraith The main job of the president is to sometimes seem to have the opposite notes, "When tasks of vast technical or communicate, to speak at the right time effect. social complexity must be done, and in the right place to the right public Even the Wall Street Journal, I not done well, society turns to university in4he right language. The perfect presi- known for any hastily conceived edi- faculties. Only for running the univer- dent should be able to patronize pa- torial positions noted as recently as No- sity is it imagined that they are incom- trons, pry dollars out of A dwindling vember 8, 1967 that: ". although a petent. For this, men of practical instate treasury, write a book, pamper Lie certain degree of rebellious independ- sight must be commanded."" world's greatest poet, dodge sniper fire ence has been Characteristic Of students On the other hand, any critic worth from the American Legion, reason with through' the agei, only lately'. does the his letter-to-the-editor, knows that pro- young Maaist revolutionaries,con- in loco parentis posture, of the University fessors have too much freedom. As tilt. vince the biology department head that seem tohave changed 'MarkedlY: When New York Times so aptly put it when the chemistry department needs $5,000 parents of- today's undergraditates.Were the Columbia Board of Trustees accept- more than he does, lure a new federal students themselves; few Of them'would ed historian Charles A. Beard's resigna- grant across the state line, while at the have thought of trying tO rnoclifY the tion 50 years ago: "Trustees . . . know same time instillinghot-blooded teen- curriculum or of sitting in judgMent that if colleges and universities are not agers with a sense ofmorality they faculty performanee. to become breeding grounds of radical- failed to develop in 17 years at home. "Today, in contrast, many universi- ism and socialism, it must be recognized But 'then how can you expect him ties yielding to undergraduate pressures that acamic freedom has two sides, accomplish anything when he spends all have cooperated in setting Up, student that uom to teach is correlative to his time crowning homecoming queens curriculum committees and system4 for the heedom to dispense with poisonous and flying to Washington? studentevaluationofcouttesand teaching."12Beard's fitnessto teach It isdoubtful that any president teachers.There are other new free- young Americans in 1917apparently would amount to a hill of beans if it don'ts, acadeniie and social; 'the free- was brought into questionbecause of his weren't for the advice and counsel he dom to engage in protest acfivities,' to training in German schools and his ex- receives from the students, who some- inviteto'thecampusContsoversial planation of the Civil War in terms of times constitute a volatile object of Speakers, to entertain members of the economic determinism. You can make public concern themselves. As a fairly opposite sex in students'- rooms, and , r your own translation ofhis problems well-known professor by the name of so on: into contemporary academic albatrosses. Aristotle once said of the young, "They "In some instances these increased There is general agreement among love too much, hate too much, and the freedoms have been exercised with what I. Alt the gown and town critics that col- same with everything else."And be- can only be described as anarrogance lege presidents are a necessary evil, with sides that they ask a lot of embarrassing quite out of keeping with the Sort of varying opinions as whether the accent questions. intellectual community a university is should be on the word "necessary" or Wallace Stegner of Stanford Univer- supposed to repreeent. It is not -uncom- the world "evil." Nason says the three sity has observed that to those over 30, mon for an invitedspeaker=Vice Presi- basic requirements for any president the young student often seems to throb, dent Humphrey, to name one at, ran- are educationalleadership, intellectual rather than think." No doubt some domto find part of his student audi- distinction, and administrative ability. shocked elders are convinced that this ence walking out on him (in'protest He notes this opinion conflicts some- generation goes to sex and drugs with against the Administration's policies in what with the fervent belief of certain the same enthusiasm that the generation Vietnam) without having the courtesy faculty and students that the proper of the 1840's went to the Gold Rush. or intellectual curiosity tohear -what role of administration is to sweep the Stegner notes that although even on he may have to say.

38 "That kind of behavior has moved self wondering just why he should de- tory, it would appear that educators as the American Association of University vote his talents to teaching Medieval well as politicians should make every Professors, which hardly can be called history or Paleozoic geology to young- effort to epply the forces of science and a reactionary group, to complain that it sters destined to be personnel managers technology with grtater regard for long- is 'destructive of the pursnit of learning and housewives. Also in many academic range human goals, as distinctfrom and of a free society. All components circles the professor who teaches only short-run material goals. of the academic community are under undergraduates isoften an object of It might help us to see the place of a strong obligation to protect its pro- raised professional eyebrows.Mean- the United States in relation to the cesses from these tactics.' " while, undergraduates continue to com- other areas of the world if we imagine On the other hand, students complain plain of large lectures, absentee profes- that all the world's population could be that the cause of disorder lies not with sors, and instruction by teaching assist- reduced proportionately into a theoreti- them but with the decision-makers in ants. cal town of 1,000 people. In this small the university administration. The past One problem in higher education that town, there would be 60 Americans, president of student government at the has aroused faint concern but should with the remainder of the world repre- University of North Carolina testified become the subject of intense action is sented by 940 persons. The 60 Ameri- at a recent meeting in Washington, this country's academic weakness in in- cans would have half the incomeof the which Iattended,of the American ternational studies and its dearth of ties entire town with the other 940 citizens Council on Education that, in his words, with foreign schools and educators. Last dividing the other half of the total in- itour institutions have lost anyreal year in announcing a series of grants come. White people would total303 sense of educational purpose.'Robert forinternationalstudies,theFord with 697 nonwhite. At least 80 towns- Powell also told the gathering of uni- Foundationwarnedthatonlyfive people would be practicing Communists versity leaders that "the American stu- American Ph.D.'s relating to the Chi- and 370 others would be under Com- dent feels that, if any coherent philoso- nese language had beenproduced in munist domination. phy is to be forthcoming, it will have this country in the past 10 years. In The 60 Americans would have an av- to be developed within his own ranLs." the International Education Act of 1966 erage life expectancy of 70 years;the Steven V. Roberts reported in the New the national government for the first other 940 less than 40 years on the aver- York Times on August 20 on the meet- time made a long-range commitment to age. Since most of the 940non-Ameri- ing in College Park, Maryland, of the support the international dimensions of cans would be hungry mostof the time, National Student Msociation. Roberts our colleges and universities as educa- there would be considerable resentment quoted a vice president of N.S.A. as tional institutions.17 The act, which is toward the 60 Americans who would saying, "Universities repress your feel- still weak in financing, calls for gradu- appear to be enormously rich andfed ings and your impulses." ate centers at our universities to serve to the point of sheer disbelief by the Student unrest had led to demands as critical national resources for re- majority of townspeople. The Ameri- for representation on faculty commit- searchand profeesionaltraining of cans also would have a disproportionate tees, a voice in changing the curriculum scholus and other personnel in world share of electric power, fuel, steel, and and hiring teachers. The delegates were affairs; undergraduate instruction general equipment. told by Jacqueline Grennan, president grants for programs at that level; spe- That is the picture that we face as a of Webster College, "The university cial training institutes at colleges and nation and as leaders of the educational forces you to be adolescent. We have to universities for high school teachers; institutions which could help relieve the break up the 'total community of learn- and language centers. The President ignorance, suffering, and frustration of ing' that is a heritage of monasticism." also has proposed creafion of a corps the people on the other side of the There is substantial agreement among of education officers to serve in embas- tracks.I strongly believe that we in the students,facultyandadministrators sies abroad, encouragement of school- West and especially the Southwest could that the nature of the learning process to-school partnerships administered by make a great contribution to the ad- requires that students be treated as per- the Peace Corps, enlargement of U.S. vancement of international studies and sons and not as numbers. Some question aid programs in education, and an in- academic exchanges. whether the university has reached the creased flow of books and other edu- Whatever one may say about the point where, like the dinosaur, its own cational materials between nations. problems of this age, it is quite obvious unwieldy size dooms it to destrudtion. WE MUST FIND ANSWERS we live in a periodof rapid change A common student criticism concerns When, in the terms of modern com- which defies all attempts to avoid the the alleged neglect of undergraduate stu- munication, the earth is smaller than a unexpected. And spealdng of the unex- dents by professors seeking professional Medieval village, we must find some pected I am reminded of an old farmer prestige and intellectual appreciation. way to step up the spiritual power of over on the east sideof our eate whose Of the 4,000 professors surveyed last human conscience to match the physical wife was always pestering him to re- year by the American Council on Edu- power of our technology. At a time- place his ancient and tattered working cation, more than half indicated that when most of the youngsters of the clothes. They had done well on their they spend more time with the graduate world will go to bed hungry, when there farm and even put a little money aside, studentsthanwith undergraduates." are more people who can't read and and she just didn't see why John should The dedicated scholar often finds him- figure than ever before in human his- run around in the samekhaki shirt and

39 so trial system muchas did the banking and financial communityto the earlier stages of industrial development. For the politician, the slogan "everyquali- fied student shouldgo to college" is the contemporary version of the previous generation's promised "chicken inevery pot."

Faced with the diverseconcerns of a diverse public which demands that , 46 something be done now" about federal pressures, the emphasis on specialized education, military contracts, theso- levis he had worn when hewas only a public and even among educators their cial-industrial complex, administrative hired hand. Itwas plain embarrassing. selves. I am suic educators don't need power, faculty power, student power and One lay John drove to townto sell some an outsider to tell them that the pro- flower power, decline in private schools, vegetables and found himself witha few liferation of knowledge has reached the social action and international inaction, more dollars than he had expected to point where scholars who claim the educators and educational administra- make from the deal;so, remembering same field of study have difficulty talk- tors will encounter a growing tempta- his wife's nagging, he went into the de- ing intelligibly to one another.This tion to try to be all things to all people. partment stoTe and bought himselfa may be part of the confusion over goal& In their search for solutionsto the whole new suit of clothing.Leaving and purposes. Combined with this is problems of administration, theyIlay the bundle of new clothes under the the problem of intense public attention feel somewhat like the alumnus whore- seat of his old pickup truck he went that many universities are finding to turned a fewyears after graduation to off to do a few more errands and have be both a blessing a curse. There is sub- visit his alma mater and talk to his for- a beer with the boys at the pool hall. stantial evidence that most institutions mer professors. Shown a list of current Later as he was driving home, hewas have failed to communicate successfully examination questions by his oldeco- feeling pretty good and got to thinking to the public eithe-: their financial needs nomics professor, the ex-studentex- about the new clothes,so he said to him- or their central academic purpose. That claimed: "But these me exactly thesame self, "Why don't I give the old ladya is why today's college president must be questions you used to ask me." "Yes," surprise?" He pulled off the road be- sophisticated in theuses of public re- agreed the professor, "we ask thesame hind some trees along the Pecos river. lations as well as the mechanics of high- questions every year." "But, don'tyou Climbing out of the truck, he took off er education. the old clothes that he know that the students hand along the was wearing and Public concerns about higher educa- threw them into the riverthe smelly questions from one year to another?" tion are more important thanever be- shirt, greasy trousers, ragged under- "Of course," the professor smiled, "but fore because educational attainment has in economics we keep changing the wear, and all. He watched them drift an- become the basis for success in thisage. swers." downstream and vanish from sight and It has become the foundation ofa new I would like to thank then reached for the bundle.It was you again for social class in America. What Gal- the pleasure and honor of servingas gone; sure as shootin' some dang thief braith in his new book, The New Indus- had stolen it. Old John looked down the your speaker. We are all grateful for trial State, calls the "the technostruc- thetremendous contribution river,lookedat himself, andthen that ture" is characterized hot by theowner- WICHE and all its members climbed back into the truck. Shrugging are making ship of property but by education and to the advancement of higher educa- his shoulders, he smiled slyly, "By heck, training. The new industrial state has tion in the West. This legislative work- we'll still give the old ladya surprise!" developed a voracious appetite for high- shop is another example ofa meaning- I have attempted in my remarks to ly trained individuals anda major de- ful and dynamic approach to the devel- you to supply neither surprises nor pendency on the institutions whichpro oping of communications which will answers, only to raise questions. I hope duce them, so that corporatepower now help our western colleges and universi- that my role as devil's advocate has rests not in ownership but in expertise.' ties meet. the demands of thisage of pointed up the need for improvedcom- It has even been said that educators and intellectual, political, and social revolu- munications between educators and the scientists stand in relation to the indus- tion.

.110 NNW %NICHE

40 Comments on Governor Campbell's Paper

western states, better than 50 percent of knows what the term means, if the edu- the state's tax revenues for education. cators will tell us their goals, if they In the state of Idaho the percentage of will establish the policies and communi- our state general fund budget runs ap- cate, as Governor Campbell said, with proximately 67 percent for education. the public which they serve.This is Where Is Education Going? not basically the task of state legislators. Education is a prime concern to the Basic definitions of quality and basic public.The vocal expression of this determinations of educational policy are public concern as to where education is the function of educators and education- going is less well articulated when di- al administrators. The public is con- rected toward our system of higher edu- cerned as to whether or not educators cation than at any aher segment of the and administrators know where educa- educational process.The scrutiny to tion is going, and the public looks to which our elementary and secondary the educators to provide the policy lead- schools have been subjected seems to ership to take them there. have been related, to a large extent, I The mandates given to our universi- think, by the ivory towers of higher edu- ties are from the people, the public, to c ation. look after our ideals and the true func- The reasons for this, however, at least tions of an educational system. No mat- in part, are not hard to find. With the ter how many obstacles the public may WILLIAM C. RODEN emergence of the knowledge industry, if put in its way, whether it be grantsman- State Senator, Idaho you will permit me to call it that, the ship, whether it be size, or whether it The concern of the public toward the major question asked of our secondary be demands for nonacademic ascendancy role of government, both state and fed- education system is whether or not the over the academicvalues, the public eral, and of the corporate enterprises education acquired there will enable our wants the security of knowing where of our country is a real and legitimate children to go to college. Attendance at our educators are going. one. college,ie attainment of a degree, is Public Concerns The guntsmanship game may pose a thought of as an end in itself. It satisfies The public is concerned over the re- very definite threat to the classical role many of our private needssocial pres- spective roles of the federal and state of our state university. There are aca- tige, exciting experience, the possibility governmat in our universities.The demic weaknessesinselectedfields, of a career status, and consequent ma- public is concerned abcut the conflict such as in international affairs, as Gov- terial status in our later years. between teaching and research. The pub- ernor Campbell pointed out, and per- lic is concerned about the respective roles haps in public administration, as Gov- To those in our public who challenge the increased cost of education, who of the sciences and the humanities in the ernor Smylie pointed out this afternoon. educational process. And the public is It is apparent to each of us who thinks question the merit of our educational expenditures, the usual answer I have concerned about proliferation and dupli- about the areas of service and need for cation of fields of study and of institu- which our society is demanding solu heard from educators, not only (and if the ones who are here will forgive me) tions which make ever and ever greater tions.But it does seem to me, as a in my state but also in others, is that if demands upon our state budget, and as legislator who has been interested in the the governor pointed out, the temptation field of education as a major public you want to get quality education, you must spend more money. I don't dis- to be all things to all people is a strong function,thatthe threadthatruns one and will not diminish in the future. through Governor Campbell's address, agree with this. The mere term "quality" is usually sufficient to sileni c those of But the satisfaction of these concerns and which has seemed to appear in each and the solutions to them will, to a large of the addresses of eacb of the speakers us who perhaps do not know the proper questions to ask to find out what the extent, be foimd when the educators de- today, is a very basic one. fine the term "quality," establish the Education in all of its aspects is per- term "quality" really means in terms of higher education. policy to attain it, and not be weaker haps the major subject of discussion in than the public who has entrusted educa- the legislative chambers of each of our I am convinced that the public wants tors with the task of maintaining and states. Public education spends, in most to pay for a quality education if it building our educational values.

I CHE

41 w.

40, could probably classify the concerns interesting to see the reaction to the in- of the public in three areasballots, crease in the cost of the primary and budgets, and book burning. secondary education.Ipredict from When you make education a big part what I hear that they will turn the bud- of the public sector, you make out of get down. Whether or not they went to every taxpayer in the State of Colorado a red school house and went to an out- and every other state in the West, a door toilet or anything else is unimport- graduate, an alumnus, and a critic as to ant; they are concerned now that 'here education. His first concern is how will are too many frills in educafion. You his voice be heard. and I who are part of education, you We are in a strange era in our country and I who have worked with education, today when we talk about ballots be- you people who administer the institu- cause government itself is going toward tions, we legislators who appropriate the nonelective officials. We have been go- money, don't really feel that there are

5'. ing through a process of doing away with too many frills. In areas like vocational LI the long ballot. We have been making .zo education, we can't even give you the appointed officials out of formerly elect- basic tools to work with. But the pub- ed officials. And there is a great concern lic, the taxpaying public is concerned, in the land as to whether or not the local and educators must sell to the public the JOHN G. MACKIE boards of education should be replaced need for the things that are now involved State Representative, Colorado by the professional educator. We will in education. find a test in Colorado, I think, very Another concern is that college pro- shortly because we are now considering fessors are making too much money. Another Public to Consider a single "foard for our two universities This is a concern of people, believe it or I want to give to you a concern from and our school of mines. The general not. They don't worry if they are draw- a public which isn't represented here. opinion of the legislators seems to be ing $5 or $6 an hour for fixing my lights The person who is on the street, the de- "Let's have this Board of Regents an or my toilet or fixing some otherthing linquent, the field worker. We haven't appointed board, not an elected board." in my house. They just say, "Those col- attracted a single person tonight away I don't think the public is going to lege professors are drawing too much from the television set or out of the beer buy this. They feel that they must have money." You haven't sold it to them yet. a voice somewhere in their educational joint down the street. There isn't a per- Finally the area of book burning. We system, and they feel they are not get- son here who comes out of a beet shack know of book burning when the Nazis ting this voice now. So they are con- because he worked all day in the sugar took over in Germany. We know of phi- cerned, and their only place of exerting factory. We represent those people and losophies that attempt to keep knowledge that concern is through the ballot. Some- yet we really don't hear too much from from people by destroying a tangible where these people want to continue this them. thing like a book. The public is con- voice. Boards of education are using ad- They, too, have concerns for educa- cerned. Maybe they don't call it book- visory committees. Boards of regents tion. Many of the things we have been burning, but they are talking about what are using alumni associations. Various told tonight ai., demands that the public is being taught. What are our children other kinds of educational bodies are is making of us in the field of education learning? What is being given to them using various other ways to tap the demands that this boy be taken off the at these institutions?It ti 3s in in the concern of the public. This is a good street, that he be trained; that she does mind of the guy in the field and on the thing and should really be continued. not become a prostitute but a nurse; that street with the failure of colleges and the people be ghen a job;that the Secondly, the matter of budgetwhat universities to properly discipline their government furnish them with security; is the cost of education? As the senator students. Believe it or nct, when they and that we organize metropolitan gov- from Idaho already pointed out to you, read about the hippies in newspapers, ernments and urban societies to give people are concerned about the cost of they think they are not being taught the these people a life lilt; they never could education and whether or not the money right thing.Somewhere or otherwe know before. As Governor Love said is being well spent. This is very true. have failed to get the message through yesterday, there are certain demands Throughout the country, and particularly that this is a minority group talking, but being made of education by government. here in Colorado, there is a growing the public is concerned. We need the help. awareness about the expenditures in all How can we change this posture? One Ballots, Budgets, and levels of education. In my own county of the ways it is being done here in Book Burning in Boulder, in school district RE2 they Colorado, is that our universities are These are public demands.Educa- are going to have an election tomorrow sen4ing people out to talk in small com- tion hasn't sold its wares too well to the on the budget for the primary and secon- munities, rural villages, and so forth on public that I was speaking of.I would dary schools which v. 's rejected by our what the university can do to serve. Colo- use the title that I have used before in tax commission. They are rekrring this rado State University has done this for another type of address and say that we budget to the people. It will' be most years. The University of Colorado has 42 01;1611111==107,111111181SINIMMINRir- a new department of industrial relations don't think a doctor should go on strike, satisfied yet. None of them will have which goes to a small business on Main and I don't think a teacher should go on all of their concerns satisfied and some Street or to a small factory and says, strike. Collective bargaining, some way will think there is nothing they can do "What can the university do for you?" of negotiating, is another area. But when about it. This is offsetting some of the bad feel- teachers themselves go on strike, people Public concern can be led. And per- ings which the people have about uni- relate this to education, and they say, sons concerned with the betterment of versity campuses. But it is still a con- "How can teachers tell us that they are education can help take this public concern, and let's not be complacent. professionals and entitled to handle our cern and mold it on a good course of ac- And, finally, if any one thing, in my children more hours of the day than we tion for education. This is an important estimation, is doing damage to the teach- do and still ask for the right to go on charge and it is one that I give to you ing profession, it is the attempt of teach- strike?" not lightly.I have been fighting the ers to go on strike. Because if your are Yes, these are public concerns I give political battle for 14 years, and I still aprofessionalperson,regardlessof to you. I have gotten them from people haven't figured the people out, but never what profession your are in, you sup- on the street, so to speak. I enjoy sit- a day goes by I don't keep workintat it. posedly sell yourself as an individual. ting down at meetings like this and talk- So this is what I would say to education Icertainly don't think that lawyers ing to people like you, but I also enjoy as to public concern, you have still got should go on strike, and Lord knows we talking to the people out there, and they to sell your needs to the man on the need a raise in pay in some areas. I have some concerns which haven't been street.

more and more answers to its problems. ing students only "whatever is left over The resources of a modem university are of personnel, time, and facilities after devoted almost as much to research in the other two functions have been met." public service as to the education of flu- There is some validity in the charge. dents. However, if we decided this year An erroneous assumption has slipped that our universities would slough off the into our thinking and that is that a good service functions and the utilitarian pro- research man is automatically a good ject research they now perform and teacher. We are trying to make faculty would devote themselves entirely to just members into jacks of all trades. They educating studenls, I am sure that busi- must do research, write, serve as con- ness, agriculture, the professions, and sultants to industry and government, and governmental agencies, including state teach as well.Original thinkers, re- legislatures, would raise such a hue and searchers and writers, in fact, are often cry that society would not permit us to poor teachers. Generally composers are do so. Therefore, our universities must notoriously poor performing musicians. accept the trinity of education, research, And authors, as a rule, give poor book and public service as a fact of modern reviews of their own books. life. Our universities must slowly but surely University Organizational separate the personnel, and in some cases \OEM. Structure Changes Are Indicated the physical facilities, by function. The If any changes in the modern uni- average student benefits very little di- ARTHUR B. SCHELLENBERG versity are indicated, and I believe that rectly from the presence on his campus Member, State Board of Regents some are, they involveorganizational of an eminent scientific specialist doing Member, State Junior College structure for pedorming the three maj or research primarily. Such a man brings Board, Arizona functions and not the elimination of any prestige and research dollars to the uni- Governor Campbell observedthat of the functions.Governor Campbell versity, but he does not very often con- higher educqion is increasing in public referred to the concern over the effect tribute much to the undergraduate stu- significance and in power. There is no of increasing research and service ac- dent's education. If we were to structure doubt that society has turned to the uni- '1. ity upon the teaching function. He the university into the three functional versities and their faculty members for said that it is charged that we are giv- divisions, separating almost entirely the

43 teaching from the research, from the the confusion over goals and purposes years. I believe that institutions of high- public service, many benefits could ac- mentioned by Governor Campbell. er education must be realistic and re- crue. Two Alternatives duce the per capita cost of education. Fiscal and budgetary separation of the The time is here for realistic action Over 70 percent of the average -uni- three functions could encourage industry for all who are associated with higher versity'sexpenditureisinteaching and state legislatures to assist financially education in view of the inevitable ad- salaries. And, therefore, we must seek in a more realistic manner. Today the verse financial climate ahead of us in ways of obtaining more productivity per average legislator assumes that a uni- the immediate future. We have but two faculty member. The techniques and versity's entire budget is spent in educat- alternativesreverse or materially re- equipment are now available to bring ing students. They divide the total bud- duce the trend toward universal post- this about, and we must make use of get by the number of students to obtain high school education or increase pro- them in developing self learning on the a so-called cost per student. There is a ductivity of our institutions of higher part of the student. There can be a re- tendency to ignore the cost of public education. I prefer the latter course of duction in the time devoted by faculty in services to the state's economy and to action so far as I believe it possible. teaching facts. Students can be taught local, state, and federal government. In the light of the needs of 200 million where and how to obtain the facts on people, half of whom are 25 years old their own, and-faculty members can de- Business As Contributing Partner or younger, the Vietnam War, our for- vote a reduced amount of time per stu- Business should be a contributing part- eign commitments, the efforts and desire dent to teaching him how tA evaluate and ner to separate research andpublic to improve the circumstances of all use those facts. I have described a radical change in service divisions of the university. The Americans through such as the war organizational, separation of the func- the function of faculty which will not against poverty, more education, re- tion would not preclude the use of re- be easy to come by, for it will involve seaich and development, and now the sources of the nonteaching division by an attitude change on the part of every. serious threat to the stability of the dol- graduate students and teaching profes- last faculty member. But what realistic lar, there is a growing attitude, new to sors. Such a separation could restore alternative do we have? We are in the stature to the teaching function and im- the American people, that the nation same position as the old man who, when prove the ambient atmosphere of the cannot afford to do all of the things it asked the question "How does it feel to teaching campus. Such a revised organi- wants to do at one time. This is the cli- be alive at 90 years of age?" replied zational structure perhaps would dispel mate in which we must live for a few "Great, considering the alternative."

Footnotes for Governor Campbell's talk.

Z.11111=IMML.A101==111.2iMMC7111M 2"The Campus Boom: A New College a "John Kenneth Galbraith, "How the Uni- Week," Newsweek, February 20,1967. versity Can Protect Itself," College Man- ...Slay.Ai 2.Iohn W. Nason, "American Higher Educa- agement, September, 1967. tion in 1980Some Basic Issues," Man "Richard Hofstadter, and Wilson Smith, in 1980, Aspen Institute of Humanistic American Higher Education, Volume II, Studies, 1965, paper No. 1. University of Chicago Press, 1961. 'Maher Lippman, "The University," The ""Class of '67: The Gentle Desperadoes," New Republic, May 23, 1966. The Nation, June 19, 1967. 4Sir Eric Ashby, "Burglars Under the Bed "Christopher Jenckr, and David Riesman, Personal Reflections on Governments "The War Between tht: Generations," The and Higher Education in America," Man Record, Columbia Teachers College, Octo- in1980, Aspen Instituteof Humanistic ber, 1%7. Studies, 1965, paper No. 2. "Robert S. Powell, Jr., President of Stu- 51bid. dent Government, 1966-67, University of 6"Soldiers and Scholars," Phi Delta Kappan, North Carolina at Chapel Hill, American May, 1967. Council on Education, (Comments) Octo- 7Michael Harlington, "The Social-Industrial ber 13, 1967. Complex," Harpers Magazine, November, "Andrew Hasker, "Who Wants to Teach 1967. Undergraduates?" Saturday Review, De- °James Cass, "More Money than Ideas or cember 17, 1966. Talent," Saturday Review, July 16, 1966. "John Brademas, "A New Federal Role," °Harrington, op. cit. Saturday Review, August 20, 1966. lqames A. Jerkins, The University in Transi- "Peter Shrag, "The University: Power and tion, Princeton University Press, Prince- Innocence,' Saturday Review, Octolier 21, ton, New Jcrsey, 1966, p. 9. 1967. Section 5 THE DEVELOPMENT OF COMMUNITYCOLLEGES: TRENDS, ISSUES, PROBLEMS James L. Wattenbarger* from a far corner of the country, distant state'spopulation.Theirenrollment enough to make me an expert, and also this fall reachei almost 100,000 stu- far enough away to lend an atmosphere dents. of "enchantment."Please be assured, Literally, the face of higher educa- however, that my honest attempt will tion in Florida has been changed. Our be to present as realistic a summary as newest universities now begin at the I possibly can of the trends, issues, and junior level, and our older universities problems which are found in the devel- have limited severely their freshman opment of community junior colleges classes. About 70 percent (80 percent without regard to location. in some areas of the state) of the Flori- RAPID DEVELOPMENT da freslunen are enrolled in junior col- No level of education hasgrown more leges, and the universities are free to rapidly or developed greater "grass- carry on graduate work and research roots"support thanthe community functions to an extent which otherwise junior colleges. More than 700 institu- would be impossible. dons fall into this category, with ap- In the process of developing these 28 proximately 50 new ones now being new community junior colleges, Flori- created each year. Almost every state da has demonstrated smile principles in the United States either hasa law and procedures which will, I believe, authorizing community junior colleges be of specific value to the other states. "Distance lends enchantment," or "A or is in the process of developing such Now is the time to emphasize, how- prophet is without honor in his own a law. The Council of State Directors ever, a principle which appears to be country." These old saws may, in some of Two-Year Colleges, which was estab- basic to community jun:al- college de- way, provide a basis for my remarks lished just three yearsago, now has velopment: The historical development today. Although we in the East work representativesfrom more than 40 of post-high-school education in a par- very hard to develop sound programs states. ticular state is likely to be the most im- of education, our goals often seem to be A few states have assumed leadership portant factor in determining the best established by what we think you in in this development, and the others are way to organize, finance, and operate a the West are doing.The Caiitornia moving rapidly in this direction.In community junior college system. Ex- Master Plan is cited by many persons California one in every 30 persons is perience continually indicates that trans- who may no t. have read it and often do enrolled as a student in a junior col- planted organizations do not develop not understand it as the epitomy of lege;in Florida, one in every 60 is well unless they are firmly rooted in great educational planning. It certainly enrolled;and in New York, one in the state's own ways of operating. This is an excellent example of such plan- every 115 persons is enrolled. These principle may account for the fact that ning! The Washington law or the Ida- three states account for almost half of there is wide diversity in the community ho law, or the operational procedure of the total junior college enrollment and junior college organization, financial a board in New Mexico may be viewed have either completed or are in the final support structure, and operational con- by easteniers as the final word de- stages of completing a master plan for trol among the 50 states.In reality veloping quality education. community junior colleges. there are no two exactly alike. Thus I come to speak to you today I am sure that you are most familiar TRENDS with the long history and recognized There are several trends, however, de- 4111MIMMI leadership of California in thislevel velopingaroundtheentirecountry *Dr. Wattenbarger was the Assistant of education. You may not know, how- which may be noted: StateSuperintendentof Community ever, that Florida is now the first state 1. There will be more community Jun:or Colleges, State Department of to complete its master plan for com- junior colleges established in the vari- Education, Tallahassee, Florida, at the munityjuniorcollegedevelopment. ous states. These institutions will serve time of this presentation. On January Twenty-eight community junior colleges larger geographical areas than was pre- 1, 1968, he became Professor and Di- serve the entire state, providing a com- viously the case in most instances. They rector, Institute or Higher Education, munity junior college within commut- will become multi-campus institutions University of Florida. ing distance of 99.6 percent of the in the urban areas (and perhaps in some

45 rural areas also).Their service area be found in many legislatures as well as are completely state supported and state responsibilities will cross i-ounty lines the operating boards. controlled. and in a few instances state lines. In states which in the past have dem- 5. There is a great amount of devel- onstrated a strong belief in local orien- 2. There is a trend toward more oping emphasis placed upon statewide state and federal financial support for tation and institutional autonomy re- coordination. Probably no single trend cently there has been a trend toward community junior colleges and con- in community junior college develop- versely less local support. Historically, increased statewide coordination and ment can be more controversial than an attendant increase in statelevel in most states community junior col- this one.Historically, the community leges have been originally established responsibility.Several states have ef- junior colleges have developed as local- fected rather drastic changes within the with total local support.But, sources lysupported, locallycontrolled, and of tax support have been changing, so past six monthschanges which un- locally oriented institutions. As a mat- doubtedly will affect directly the auton- has the support of public education. ter of fact, the entire structure of Ameri- More and more funds now come from omy of individual institutions.Cali- can higher education has been based fornia, Washington, and Colorado are state and federal sources. There are in upon the integrity and the independence reality two major reasons for this:(a) three of these states. of the individual college or university. REASONS FOR INCREASING the limitations of local ad valorem taxes, The community junior colleges not only and (b) the recognition that the com- STATEWIDE COORDINATION were no exception to this principle, but There are a number of factors which munity junior college program is a part actually gave it more emphasis because of the total higher education system of would explain this trend toward In- of their basic financial support struc- creasing emphasis upon statewide co- the state. ture. Historically, the state has 3. The trend toward more emphasis ordination. upon occupational educationatthis There have been, of course, a few been the basic governmental unit responsible for education, and local dis- levelis seen in almost every state. states which long ago organized junior Many states which formerly supported colleges as parts of a university system. trict boards have derived their responsi- only a limited academic program in These have been few and have not as bilities from delegated powers given to their community junior colleges have yet demonstrated any particularly note- them by the state government. Recent more recently taken specific steps to worthy success. There are a variety of increases in the concern, interest, and support for education by the federal provic1,3 support for vocational-technical organizations and structures for ad- and continuing education. Some states ministering this level of education. In government have emphasized the state's role.The requirement that so-called found that competitive institutions have spite of the variety, however, the trend been established to do this job and toward statewide coordination currently state plans be submitted and approved have taken steps to combine them into is found in almost every state.There- before federal funds are released has fore, I would like to spend the rest of given impetus to this state function. The asinglecomprehensiveinstitution. Other states have added functions to my time discussingwhat is, in my opin- concern of state legislators themselves for warranted use of limited state re- existing institutions. Federal funds have ion, the most important recent trend in been used more broadly and over-all communityrnior college development. sources (especially money) has caused As one looks at the growth of higher them to establish state boards in states which previously had given little or no 66. the state colleges inom:\ education around the nation, he will area are articulating very closelyin note that the rather strongly independent consideration to statewide coordination. the area of occupational programs local orientation which nurtured most The recognition of the need for long- ... wedo have good liaison." of the early junior college development range as well as short-range planning DR. MOORECALIFORNIA is no longer the major characteristic of has motivated existing boards to give community junior colleges. There have more attention to coordination. Changes statewide planning has improved. been changes operating in the newer in sources of tax revenue also have con- 4. There is evidence nationwide of developments of these institutions and tributed in large measure to this attitude. more concern for faculty development. changesintheolder AREAS OF RESPONSIBILITY Some of this concern has resulted from evensome Several states very recently It appears that there are a number duress created by disagreeable situa- ones, too. have established j unior colleges which of areas of responsibility which repire tions which resulted in walkouts, strikes, attention in state vis a vis local rela- or resignations. On the otherhand, this tionships.These may be summarized 44. industry is saying that we concernalso has been sparked by into six major groupings: (1) those re- emerging leadership programs for facul- need the engineer with the practical sponsibilities relatedtoover-all state ty improvement.Specific action has approach as well as the one with So those of planning;(2) those responsibiliees re- been expressed through improved sal- the research mind. colleges and universities lated toorganizationalstructure and aries, increased opportunity for insur- you in ought to be willing to help the vo- staff services;(3) those responsibilities ance, and other related programs, facul- cational programs enhancetheir related to policy-making and institu- development,andthe tyin-service image with the post-high-school- tional management; (4) those responsi- strengthened recruitment and retention bound student." bilities related to faculty and staff needs; programs.These improvements have SENATOR DEANUTAH (5) those responsibilities related to cur- indicated the serious concern which may

46 riculum matters;and (6)thosere- state. board and, therefore, may very well al- sponsibilitiesrelatedtorelationships Another major responsibility in the so require interboard or superboard ac- with other organizations and agencies. area of statewide planningisrelated tion. GUIDING PRINCIPLES OF to the establishment and development of A third area which has not received OPERATION new institutions. These decisions are, as much attention, but which undoubted- Basic to the entire structure are two of course, of great interest and concern ly will receive more as we progress, is guiding principles of operation: to those institutions which already are the need for the state board to give at- 1. Coordination is the basic responsi- in existence. In these days when every tention to the over-all planning for the bility of a state-level board and should local chamber of commerce is convinced scope of responsibilities each institution be expressed through leadership, not that an institution of higher education will assume. While the problems are control. is essential to the health and well being not as difficult to solve relative to the 2. When there is responsibility, there of every hamlet, village, town, and city, community junior colleges as they may must be concomitant authority. be in reference to senior institutions Keeping these two principles in mind, whose graduate programs often develop let's examine the six areas. very narrow and sometimes very expen- A major responsibility of a state co- sive specializations, similar problems, ordinating agency or a statecontrol however, do become very important for board is centered around over-all state community junior colleges as new and planning. Obviously, this is an activity widely varied occupational areas begin which cannot be carried on by local to grow. persons or by individual colleges. There The concern for the increasing costs are numerous specific activities, how- of education and for expenditures of ever, which are directly related to over- tax resources will cause many groups to all state planning. These activities re- examine institutional budgets and to quire clear understandings regarding become critical of indefensible duplica- relative responsibilities which areas- tions of educational effort.The need sumed by the state-level agency and for specialists even in the highly skilled which may be carried out by the individ- technologies has a limitation, and to go ualinstitution.Among theseisthe beyond it is to educate more workers desirability that the state board act as than there are vacancies. A carefully the sole agency which collects and re- developed set of guidelines for decision- leases statistical information. One of making must be developed as well as the first things we found in Florida as "The community colleges must an accepted method for making equit- we began to develop new institutions 10 accept vocatienal-technical educa- able decisions. Grants of funds unfor- or 12 years ago was that there were a tion as a prime responsibility. State- tunately may become a major impetus wide coordination is essential large number of agenciescollecting for decision-making. These guidelines thewesternstatesshouldask statistical information regarding enroll- WICHE to develop a program that should be used to determine which insti- ments, student costs, and similar very would prevent unnecessary dupli- tutions will not be permitted to expand importantdata. We veryquickly cation of costly technical schools into specified programs. found that if individual collegesan- . . . and develop interstate transfer These few examples serve to illustrate swered these questionnaires or provided agreements to insure maximum use some of the responsibilities related to information directly to an agency, not of the facilities.. . I say let's give over-all state planning. The two guiding only was the information provided by these students a chance." principles are particularly pertinent:it one college inconsistent with those an- SENATOR BARRETT is impossible to carry out these responsi- swers provided by other institutions, WYOMING bilities without authority, but they can but such data also was often in error be effected most successfully through as the result of a clerical mistake and/or it is of greater than umal importance leadership rather than control. a variant interpretation of the questions. to make certain that there exists ade- RELATION OF STATE AGENCY This difficulty becomes particularly per- quate planning for new institutions TO JUNIOR COLLEGE tinent when one is dealing with a legis- based upon fact rather than excitement. The relationship between the state lative committee and finds that infor- The state board must assume this re- agency (board or staff) and the local mation he has given is being challenged sponsibility. This activity requires skill, junior college relative to the organiza- because different information has been scholarship, and political aplomb.It tional structure and staff services is an- provided from another source.There- cannot be carried out successfully with- other area of responsibilities which re- fore,it becomes incumbent upon the out a master plan of development for quires very careful attention to the first state coordinating agency to assume re- the state which considers all ekments of principle as enunciated above. The responsibility for collecting information post-high-schooleducation.Some of lationship of individual staff members of this nature and to distribute it to these elements most likely will be outside at the state level to individual staff mem- agencies both inside and outside the the particular responsibilities of any one bers at the local level becomes very diffi-

47 dependent report when deemed neces- of a student at one of the institutions; sary. or it may involve criticism of a faculty A third area where the organizational member at another inctitution;or it structure at the state level is particularly may involve athletic policies at a third important is in tbe area of student ac- institution. These matters become par- tivities. In this instance, an extra-legal ticularly important when members of organization such as the Florida Junior the state board disagree with the acdon College Conference may be needed. taken by a local board operating a com- Leadership for this conference should be munity junior college.Itis essential provided by a state-level staff member. that the state board recognize its limita- However, in Florida, this person serves tions of responsibility through limiting as executive secretary of the conference its policy statements to those which af- and works with the conference board of fect all institutions rather than attempt- directors by following through in the ing to develop rules and regulations implementation of their policies.This for the operation of a single institution. Floridaconference,incidentally,in- The state board actually cannot develop cludes all student activities and is not policy for a single institution without solely an athletic conference, although becoming an operating board for that FRANK MOCKLER-MONTANA athletics do take up the major portion institution. of the time of the board of directors. Undoubtedly, instances of difficulties cult unless there is continuous recogni- Here again, as in the other councils, affecting a single institution will cause the board to give attention to policies tion of this particular principle. decision-making is placed in the hands We have found in Florida several of the representatives from the colleges, which will affect all institutions. Even modus operandi which have been valu- with the state staff serving as expeditor, when the problem appears to be local- able implements for arriving at con- chairman, and in a leadership rather ized and seems to affect only a single census as well as understanding.The than a control role. Authority to im- institution, policy statements must be State Junior College Board very early plement comes from the group itself in carefully scrutinized in terms of the authorized a Junior College Presidents' some matters, from the board in other effect upon other institutions. Council. The membership of this coun- matters, and from the law in only a Itis no more the function of the cil is made up of the presklents of all very few matters. In a.: instances, how- staff of the state board to interfere with junior colleges, with the board's execu- ever, agreement and concensus is to be internal operations of an individual in- five officer serving as the permanent most highly desired, and the activities stitution than it is of the state board chairman.In this capacity,it is his of the state-level staff must be directed members themselves.Therefore,the responsibility to call the meetings, or- toward that end. staff must watch its approach to work- ganize the agenda, and preside. It also In considering those responsibilities ing with individual institutions also. is his responsibility to report the actions related to policy-making and institu- Here again, the attitude of the state of the council to the State Junior Col- tional management, a state board and board's staff is of prime importance. lege Board and to request further action its staff must walk a very critical path. If the approach is one of leadership for implementation where such may be There undoubtedly will be a tendency rather than control, comity will be required.It also may be his responsi- for a state board to "take care of" mat- maintained. However, in great measure, bilitytodeveloprecommendations ters which come to its attention directly. the competence of the local staff is the which differ from the final conclusions Such matters may involve the admission key to determining how far state con- of the council.His freedom to make =. such recommendations is essential in order to prevent any tencleacy in the council to "logroll" decisions. In addition to the presidents' council, there is a Council of Academic Affairs which is organized and operated in a similar manner, with the director of academic affairs on the state staff serving as permanent chairman of that council. The Council of Academic Affairs recommends action within its areas of concern to the presidents'council, which in turn may pass recommendations on to the State Junior College Board for implementation. Here again, the chairman must be prepared to make anin- Nor

48 :.

trol may go. When the local staff does not display sufficient wisdom and ability, the pressure is on the state staff to make decisions it would not otherwise k be forced to make. A specific example may be pointed out relating to buildings rft,' and campus development. Where the local staff makes good defensible decisions regarding these items of institutional management, there is no need for a great deal of state staffwork. On the other hand, if the local college does not carry outits responsibilities, the state staff is forced to make decisions for them. a RESPONSIBILITIES OF STATE BOARD employed in their jobs until the state the final responsibility for approval of In those matters relating to faculty has approved them for the position. At the employment or dismissal of the chief and staff needs, the state board may first this may seem to infringe upon local administrator. have several important responsibilities. local decision-making power. However, Traditionally, the matters related to The first of these is to establish and to as one examines the procedure, he will curriculum have been held within the enforce minimum qualificationsfor note that it becomes a rather good de- close purview of individual colleges, facultymembers.Inseveralstates, that is to say, the faculty itself. We have junior college faculty members now are /"... we are finding in our follow- felt very strongly that matters related required to become certificated. They up study that occupational students, to curriculum should be determined at may even follow the same typeof certi- graduates of our community col- this very basic level.However, when fication procedures as is used in grades leges, are frequently those that con- catalogs are developed, the actual ap- tinue their education in an evening 1 through 12. In other states, certifica- proval of items in the catalog is carried part-time class." tion never has been required at the DR. BUFFINGTON out by the operating board, and this junior college level. However, the state CALIFORNIAj constitutes the final approval of the cur- junior college board must give attention riculum. to this problem, even if its final deci- fense against hasty decisions.It has When people look at statewide systems sion is to assign the responsibility to helped us in Florida to maintain a very of higher education, however, the gen- the individual colleges. highlevelforpotentialpresidential eral public constantly calls to our at- In 1957, when the State Junior Col- candidates. It has removed in a number tention very pertinent questions which lege Master Plan in Florida was ap- of instances pressures to appoint poorly we as educators often do not answer proved, the study council was quite in- qualified but politically expedient people satisfactorily.If freshman English is sistent that the appointment of the presi- for these highly desirable positions. freshman English and should be re- dents of the colleges must receive final This expFaience in Florida may well quired of all students who enter our approval from thestateboard.In indicateanotherstateresponsibility doors, why isit that each individual Florida, our presidents are nominated which should be consideredlhat is to college has a different name and num- at tbr local level, but they may notbe place in the hands of the state board ber for the course? Is it defensible for

16. such a course to carry different numbers

"r< and cover different areas of content in different institutions? Why is it not 1:04.:, possible for us to establish guidelines which would in great measure determine the basic courses which are to be available at the freshman and sophomore level? While we in the profession shudder in some apprehension at this kind of approach, the average citizen often does not understand our shudder. He also often does not understand why we do not have commonlyestablished grading and testing procedures. It will become essential that we answer these questions satisfactorily, and at the same time develop common approaches among

49 For example, imagine two junior col- "..the primary problem that leges built within 60 miles of each other. we see as teachers is the level of One of these operates a program in expectation imposed upon the stu- dental hygiene which is serving quite dents by the parents." adequately the population surrounding REPRESENTATIVE KING that institution.Since the demand for WASHINGTON this program is quite high, the college is seriously considering doubling the held responsible for the quality ofthe size of each class, admitting 40 students programs also.This responsibility is each year instead of 20, in order to ac- one which has been traditionally and commodate the increasing pressure for reasonably shared with the regionalac- admission. On the other hand, college crediting agencies, but nonethelessre- "B" down the road just 60 miles away quires attention from the state-level staff. wants to start a dental hygiene program. The function of leadershipon the part It already has been determined that such of the state board in developingnew a program can be adequately carried areas of curriculum also is one which out with a basic 20-student enrollment. may be recognized as a state function. If, however, the first of these two col- The responsibility for over-all state plan- leges doubles the size of its present stu- ning provides information which is un- CS community colleges still dent load, there will be no need for the available to individual colleges.This tend to be defensive. Would a clear program "down the road." information, when considered in terms designation that they are part of Now who or what agency is going to of over-all state needs, placesa special tihigher education help the situa- adjudicate this kind of situation? Should responsibility upon the state board. on?" college "A" double the student admis- The final area is concerned with those EDNA SCALESOREGON) L sion, or should college "B" establish a responsibilities related to relationships new program? If a state agency is mak- with other agencies and mganizations. the institutions, especially in tiloseareas ing this decision, and if that agency is State boards have been established in in which institutional autonomy is not truly concerned about service to the of great import. most states by legislatures which expect- students, itis quite probable that the ed such a board to become their major THE HEART OF THE MATTER second institution would be authorized contact point. This responsibility is in- Thus far,however,Ihave only to start a new program. On the other evitable.Thf-; state board becomes the touched the surface of curriculumre- hand, if everyone were primarily con- place where informationis gathered, sponsibilities;therefore,let me take cerned about operating costs, it might one deep bore into the heart of the from which recommendationsmay be be determined that the first institution expected, and where a spokesmar mattei. It becomes more and more ap- may could expand at less expense.It will be identified. This function is similarly parent as colleges develop a variety of not be an easy problem to settle. expected by most other agencies. occupational programs that all colleges The situation will require not only cannot develop all occupational areas. When the concrete producers wanta the authority to enforce the final deci- new occupational program, or when the This is the case because of two reasons: sion, but more importantly, special qual- hospital association wants (1 ) cost of certain programs as well as a new in-ser- ities of leadership in reaching an equit- vice training course, the state board (2) the limited demand for individuals pro- able and accepted decision. vides an excellent place to begin in the skilled in certain specific occupations. The state board undoubtedly will be consideration of statewide needs. Consideration must be given to statewide Staff needs which must be met, even though the demand in any ane area of the state does not result in a great number of vacancies. We must find some way of determining equitable guidelines which will form the basis for agreements between institutions regarding their ability and intent to start new programs, as well as to continue or expand existing ones. '

...the institutions of higher education in the WICHE region co ad well afford to give special thought to the staffing needs of commmity colleges." DR. SHAY COLORADOnj

50 and leadership can be provided here tion given tothisparticularoffice. and the competence of its staff are most which will produce definitive results. There may be, therefore, instance° when important, but of equal or even greater The state board also provides an ex- the function of the state board and its importance is the competence of the cellent agency for arriving atagree- executive officer will have to be assert- institutional personnel. The state board ments regardingarticulation between ed. This will cause pain upon occasion, need not become involved in making de- the upper level collegiate programs and but perhaps necessary pain. In reality, cisions regarding internal institutional the junior polleges. The leadership pro- the authority to represent a number of matters when the institution itself has vided by the staff of thestate board can institutions must truly be earned rather operated responsibly and elk(' hely in be effective in formulating policy re- than granted directly.This certainly reaching decisions. garding transfer problems and related is the best and very likely. the most ef- matters. fective way. Finally-, the modification of the ex- Traditionally, higher education in the I have very briefly suggested six clush-e1; iocal orientation of community United States has been centered and major areas of responsibility in which junior colleges requires that each insti- developedinstitution byinstitution, statecoordinating boards and local tution give up some of its own decision- with little or no contact between them or boards must learn to live with each making responsibilities to the state co- among them. Some boards want to give other. The division of responsibility is ordinating agency. As difficult as this their executive officer a high-sounding the important accommodation which may seem, it is essential to state co- title in an attempt to overcome being must be made if we are to maintain the ordination which is without question the ignored, i.e., chancellor or provost. In highly valued essentials of local opera- major trend in current developments of general, there is still very little recognition. The attitude of the state board conununity junior colleges.

ICHE

Comments on Dr. Wattenbarger's Paper

One cannot help but agree with the part of my colleagues who, in other in- essentials of what Dr. Wattenbarger has stances, have taken my positions to be said, but I should like to address my somewhat in the opposite direction.I remarks to that fifth item which he question the cost, the trend, and the talked aboutthe trendtowardin- need for increased statewide coordina- creased statewide coordinationas the tion. We in California are blessed with major subject of his address. Certainly almost a half million students in our one cannot help but be impressed by the community colleges and these commun- rapid and the orderly growth of comity colleges have grown, admittedly, like munity colleges in Florida and the op- Topsy, over the past 50 years to the point portunities for education which this where we enroll almost 85 percent of the growth represents.I will not quarrel freshmen, and sophomore students en- with the leadership of this system and rolled in polic higher education in the the coordination which has been pro- state of California. vided by Dr. Wattenbarger and his staff. The primary emphasis of our colleges A Different Role for the State should be on students and the quality of I do, however, wish to pose some posi- the educational program.However, I tions which argue a different role for do contend that in the long run the ern- the state, granting of course that the phasis of the coordinating theocracy state, historically and legally, has the pushed by the legislature will be on REED L. BUFF1AGTON, functior of education as its proper role. order, efficiency, symmetry, uniformity, Superintendent.President, I r lay appear to be a conservative, even and statistics. The two are not neces- Chabot College, Hayward, perhaps a reactionary, which I think sark incompatible, but the tendency is California would be a welcome observation on the for ths,,,a to become counter forces. The measures used to determine success or "Who speaks for the junior college?" We do not know theprice nor give approbation become ends in them- The people of the many thousands of have we attempted to determine the cost selves. Diversity is a major strength of communities in California speak for the benefit of statewide coordination and American public higher education and junior colleges, and we have not accomp- control.I lump the two together be- I wonder if this diversity can survive the lished anything by having one voice cause I believe in the long run they are statisticians and the computers. I seri- speak to our legislators for the junior inseparable. ously question the effect of state coordi- colleges. No one has suggested in the What is the value added to education nation in the long run on the initiative, whole process of the development of a by virtue of this expenditure which I innovation, and competition within indi- statewide board for the governance of would estimate In California, in a few vidual institutions, in the face of the junior colleges in California that it will years, will be at least a million dollars subtle but powerful forces for uniform- result in any improvement in education. a year for the operation of the board ity which a statewide board and its staff I submit to you that this should be the and the bureaucratic sty bare necessary provide. only purpose for such an agency. to function thereunder? We do not Position twothe genius of the junior Position threeI may be somewhat know the value added, and I suspect it college exemplified in California has philosophical.I should like to argue is going to be a long time before any been the democratization of higher edu- that democratic institutions cannot sur- research is directed toward that question. ,.cation.Its strength and survival has vive the ever-increasing distance between It behooves us to inquire if the legis- stemmed from responsiveness to local the citizen and the effect of his voice lature might not accomplish more by needs and to change in those communi- and his vote. In higher education, only dearly defining goals and purposiis in ties. the junior college is totally visible to statements of public policy in ways1 that We certainly cannot deny the impetus the citizen.Like the citizen's public will guarantee the state's rightful interest, to growth given by state action in Flori- secondary and elementary schools, this but at the same time protect local initia- da, Illinois, Colorado, and elsewhere. institution remains as one of the last tive and implementation. I have heard a However, the greatest development of arenas in which his presence has immedi- number of voices from the audience and junior colleges in the nation has been in acy and potency. The effect of increased from the pta:fsrm talking about our in- California by virtue of local initiative remoteness and size of the system is to stitutions setting forth their goals arid and local control. To be sure, there has put the public's (and I put the emphasis their aims. I would suggest that it is been, in California, state support and on the possessive) the public's schools in not the function primarily of the institu- nominal control although full control is the hands of the profession and out of tions to set forth their goals and their possible in California under existing the hands of the citizen. The further aims but the representatives of the statutes and authorities. We in Cali- control is from the action, the more it people. Our legislators must determine fornia junior colleges are very pleased deals with crises and the outward mani- in statements of public policy what the that the state controlling agencies have festations of achievement or lack of goals of education at all levels will be not seen fit to exercise the full control ach ievement. in the several states. which is possible under the statutes. I submit to you that New York City I would close, finally, by two quota- The argument for the new state board is now concerned with a highly contro- tions which I think are illustrative of of governors for community colleges versial proposal made on November 12, my position and my philosophy. First in California which comes into existence 1967, to decentralize the New York City I would quote Paul Goodman, before July 1, 1968, has been more effective- schools into from 30 to 60 autonomous the National Security Industrivl Associa- ness with legislators. The whole argu- boards. The profession has risen with tion in October of 1967, where he ment has centered around the need for full armor to argue for the central con- says:"In a society that is cluttered, this board in order that the junior col- trol and direction of the New York City over centralized and over administered, leges or the community colleges in Cali- schools. But there are those who feel we should aim at simplification, decen- fornia can be more effective with legis- that many of its ills and many of its tralization, and decontrol." lators. Translated into ordinary langu- failures have resulted from the emphasis And secondly, the philosophical con- age, this means "How do we get more on centralization and the remoteness of sideration I would quote from Nevitt money each year?" I question whether the schools from the people. It appears Sanford in his most recent book Where or not the amount of money which will tome thatcentralizationgenerates Colkges Fail: "Instead of good or bad be received by virtue of this state board further centralizadon. decisions by responsibleofficials, we will be offset by the cost of the board /s the Price of Statewide now have mediocre decisions by anony- or by the price we will have to pay for Coordination too High? mous committees. When vast networks increased money. In conclusion, I must ask the question of functions somehow lead to immoral We have been, in California, strug- "Is the price that must be paid for in- effects, we can find no individual to gling with this question for a long time creased state control and coordination blame, no one who feels personally re- and the common question has been too high?" sponsible for what happened."

ICHE

52 ,01,, school districts. An elected state school the mission of the community college board isresponsible for the public has not been ignored. Since the system school system that is the ninth largest in took over our technical schools, formerly the United States with 170,000 stndents administered by the state's board of edu- and 6,500 teachers. The stote's Univer- cation, and converted them into com- sity of Hawaii with an enrollment of munity colleges, the number of occupa- over 17,000 full-time students, admink- tional programs has increased and en- tered by a Board of Regents, accounts rollment in these programs has also zer. for 90 percent of all students enrolled in increased by 50 percent in two years. undergraduate education, and 100 per- It can be said that instead of developing cent of all graduate students. With such the community colleges in the image of a public education system, the question liberal arts colleges, the university is before the state legislature in establish- encouraging the conununity colleges to ing a statewide system of community take care of the occupational education. colleges was "Who shouldrun it . . . the 2. Within the faculty of our univer- Board of Regents of the University of sity and the existing technical schools Hawaii, the State Board of Education, there were pockets of resistance to the or a new and separate Board for Com- university taking over the community munity Colleges?" colleges. Some university members ob- The position of the Higher Education jecting to this marriage felt, to put it LARRY N. KURIYAMA Committee of the House was to have bluntly, that these colleges were from State Senator, Hawaii Are university responsible for the com- across the track.I believe today they To one who has gone througha rather munity colleges, and in the final version realize and accept the fact that these unique American educational system of the bill establishing the system of community colleges are not extensions where the state govermnentsupports and community colleges this position pre- of the university itself, 'out a separate operates the public school system from vailed.Thus all higher education in system of colleges with a different mis- kindergarten to the doctorate degree, the Hawaii is coordinated. Our statewide sion. In fact some of the faculty mem- problems and approaches 3iscussed by coordination is built-in since one board bers are making themselves available Dr. Wattenbargerseem a little strange controls public higher education, includ- for assignments to the community col- and foreign. Hawaii alsooperates the ing commtmity colleges. leges. The resistance on the part of newly established community colleges in This statewide .,.rbtem not only fits the technical school teachers was under- a rather unique way, but our state very well into our historical development, but standable. They were concerned about well illustrates two of the major points also manages to be responsive to the their status under anew board and ad- made by Dr. Wattenbarger:(1) that local needs of our residents.In our ministration. However, once themar- each state's organization and operation small state and geographic island make- riage took place, a new spirit to attain of community colleges is determined by up, the state legislators are just as close excellence and improvement tookover, the historical development of post-high- if not closer to the grassroots than the and the majority of them feel that they school education, and (2) that it isan city councilmen or county supervisors. are in a different league and welcome example of a system that is truly state The legislators see to it that local needs the challenge. ccordinated. are communicated to those responsible Statewide Coordination Before discussing Hawaii's system of for operating the colleges and the Uni- no Problem in Hawaii community colleges in connection with versity of Hawaii. Now as to state coordination, you will these two points, let me say that we did Answers to Objections agree with me that it is not a problem have the benefit of numerous qualified Before going any further, let me at- with us. Ow system is headed bya uni- and helpful educators corning to our tempt to answer some of the criticisms versity vice-president for community shores to advise us on establishing our or objections which were made when we colleges, who reports to the university system. Our survey team saw some out- decided to let the university operate the president. We have five provosts,one standing community colleges in Cali- community colleges. I'm sure the pas- for each one of the five community col- fornia and visited Florida's community sage of time would prove that we made leges, who report to the vice-president colleges and was most impressed by its a wise decision in this regard. for community colleges.This rather effective and well-organized system. I've 1. One of the objections against hav- direct line of communication and clear .heen told that Dr. Wattenbarger has one ing the university run the community responsibility eliminates the need for of the best systems in t1.3 nation. colleges was that community colleges any state coordinating agency. I would All Higher Education in Hawaii and universities have different missions not contend, however, that our system is Coordinated and that these colleges would becomea is foolproof or the trend Dr. Watten- As some of you may already know, stepchild of the university and endup barger speaks of wouldcome anywhere public education in Hawaii has always as poor imitations of liberal arts col- near our centralized system. Each state been financed and operated by the state leges. I can report that inour short ex- will have its own peculiar organization, government. We do not have local perience, which may not be f.:onclusive, and what is of primary importance is

53 that the goals and objectives of higher colleges and of meeting its post-high- training can be applied wherever o education of that state be most effectively school educational needs. But from the portunities exist. and efficiently served. standpoint of programs for the young- In closing my comments, letme ex- sters, it is unfortunate in that this term I expect the youngsters of my st tend Dr. Wattenbarger's pointon the may tend itself to a highly localized ori- to seek opportunities and employme need for coordination a little further. entation. True, the community colleges not only in my district, but here on Perhaps the term community in refer- should pay attention to local needs (just mainland as well as in the develop ence to these two-year institutions is ap- as Hawaii's should develop training pro- Pacific basin, just as your youngste propriate from the standpoint of advanc- grams in tourism) , but these institutions come to Hawaii seeking opportuniti ing the concept of community supported must remember that good education and employment, and sunshine.

4110.11.0* W IMM1141.4101111101=1MIM.MMINNIMM ICHE

minutes on a matter whichseems to me organizational and fiscal centers ofco to be related to organizational effective- munity college operation in many stat ness. In the long run, I believe this mat- are tending to shift hop local to stat ter also relates to efficiency. sites. In some states there is need fo State-level organization is,or at least state-level planning toencourage th should be, intended to increase both the establishment of community collegesan ..11111. effectiveness and the efficiency ofcom- to improve existing colleges. There munity collegeoperation.I believe often need for state controlover the 1 there is some danger, however, thatas cation of colleges. Perhaps most import state-level organizations havemore re- ant, there is in many stats need for sponsibilities and becomemore com- agency which can collect data and opin plex, they may tend to become primarily ions, in order to present a unifiedcom concerned with efficiency, at thecost of munity college case to the legislature reduced concern for effectiveness. But Taking all these factors into account, i I also believe this state of affairs can be is difficult to dispute the need forco avoided, if we remind ourselves of the ordination and leadership at the stat danger, and structure the systems so as level. However, the degree ofnecessa to insure that a continuing emphasis is state-level coordination and planning placed upon educational effectiveness. another question, and I think it willva The Need for Statewide widely from state to state justas patte THOMAS M. SHAY Coordination and Leadership of community college control and finan Associate Professor of Briefly, my thesis is that the greatest vary widely. Higher Education effectiveness of the commnity college is Community Collegesare Close to University of Colorado achieved when there is the widest disper- Local Communities It seems to me that in our discussions sion of leadership and of participation Regardless of the organizationalpat today we are basically concerned with in decision-making. In part, thiscan tern adopted in a given state, itseem two factors, thus far not labeled, in com- result from local autonomy; more im- to me to be of critical importance thatw munity college organization.On the portant, however, is the structuring of devise means of maintaining and in one hand, we want to establish an organ- both local and state organizationsso that creasing local involvement. Dr. Watten ization which will be effective in serving participants at all levels have an effective barger has describeda president's coun the needs of all the citizens who are, or voice. cil and an academic council which hav might be, touched by community college Dr. Wattenbarger mentioned the de- been devised to help do this in Florida activities. On the other hand, we have creasing emphasis upon local orienta- I am suggesting much wider applicatio a deep concern for efficiency in the use tion of the two-year college. I will not of this principle. By and large,two. of public moneys, in the use of humanre- dispute the point that such a decrease year colleges have been the only el sources, and in the use of physical re- is occurring, and often for good reasons. ments of higher education specificall sources. I should like to focus for a few As Dr. Wattenbarger pointed out, the geared to the interests and characteris

54 tics of local communities. This has been, examples, there is an acute failure of educated but observant citizen, as well and is, more than a matter of offering communications between the schools and as from the dean of instruction. I main- courses needed tn. wanted by local citi- thefamiliesserved by theschools. tain that whatever the source of com- zens.In its highest development, the Doubtless there are many reasons for munity college funds, whatever the na- truly community college has becomea this communications failure. My point ture of state-level organization, there community focal point,a generaiJr of today is that many of the remedies pro- can be provision for flexibility and local individual and communityconcern for posed involve bringing the people closer creativity, to meet local situations. learning of almost limitless kinds. to, and actually into, the processes of If the local college participants have Where this kind of community college educational decision-making. Indeed, as a strong voice in determining the goals development has occured, it has been we have read, the Bundy committee pro- and activities of their college, then they characterized by a great deal of involve- poses splitting the New York City sys- are likely to be more interested in work- ment of the people, and by a continued tem into 30 to 60 school districts, each ing out programs directly related to their responsiveness to the people's interests with its own local board. community, more interested in experi- and needs. The kinds of involvement 1 there not a lesson here for us? As mentation and innovation, and probably and responsiveness have ranged from the locus of many kinds of community more interested in maximum use of avail- setting up advisory groups of corpora- college decision-making moves away able resources (i.e., efficiency).On the tion executives to setting up evening from the local community, it seems to other hand, if local autonomy is eroded, counseling centers in low-income resi- me to be imperative that we structure and local participants have less and less dential areas. In another vein, therange the systems so that local groups--faculty, control over the affairs of their college, of citizen concern has been frompass- students, and public, as well as adminis- then it seems likely that local participants ing a multi-million-dollar bond issue to tratorsretain a clear and effective voice will soon be saying: "Let George do it, roofing th2: one and only classroom in those community college decisions at because George is calling the shots any- building. both local and state levels. Only by en- way." Of course another alternative, The optimum outcome of this kind couraging and responding to the involve- where there is a great deal of certrali- of involvement with the local community ment of many local groups in all kine's zation, is for local participants to com- has been a conunitment on the part of of communities can we make maximum bat the state administration at nearly local citizens. The major importance of use of available brain power and retain every turn. When this happens, there is commitment is not that it sustains the the widespread commitment which has danger of negating the benefits of cen- college, important as sustenance is. The been one of the strengths of thecom- tralized planning and coordination. great importance of local citizen commit- munity college. In sum, I have intended to under- ment is that it can engender and sustain Perhaps I should enter a disclaimer. score and extend some points that Dr. interest in and concern for learning; and I am not suggesting that state boards Wattenbarger made, by empha4zing the experience shows that this can happen in and officers in any state are setting out need for maintaining the greatest pos- communities which have previously evi- to undermine the local involvement of sible local college autonomy, whatever denced little interest in learning. community colleges. What I am suggest- the state-level community college organi- This kind of involvement with and ing is that, as organizations grow larger zation may be. I have suggested that we and more complex, there seems to be a remind ourselves that leadership in an ".. . outof every 100 students natural tendency for decision-making to organization, whether local or state, does who enter a junior college as fresh- become more centralized and policies not always come from the titular heads, men, about 30 go on for baccalaur- more rigid, unless leaders in the organi- but should be and can be cultivated eate degrees." zation make a conscious effort to counter- among participantsof many levels. DR. W ATTENDARGERJ FLORIDA vail this tendency. This seems to be par- Basically, I believe local autonomy and ticularly true where budget control be- the spread of leadership are desirable commitment of the community is of comes more centralized, for program because they can lead to maximum ef- great importance in small and medium- control tends to follow budget control. fectiveness of the organIzation, even size communities. But I would argue This community collegewe are talk- though a high degree of centralization that it is of supreme importance in the ing about is the people's college;if it may seem, in the short run at least, to metropolitan centers and particularly ceases to be responsive to the people, it be more efficient. in what has come to be called the inner loses one of its chief reasons for being. From this point, I am constrained to city. For it is in the inner city that we But in order for it to be responsive there say that I consider the most important find those citizens who have probably must be wide latitude given to local col- role of the state-level organization to be the least knowledge of what a community leges, for communities differ greatly and the facilitating of local endeavors. This collEge can do but have perhaps the ideas on how to meet community needs role does not obviate the need for state- greatest need for involvement in learn- differ even more greatly.If both local level coordinaton and leadership.It ing. and state officers are alert, theymay find does, however, place a somewhat differ- The public school experience of some that leadership, as well as support,comes ent emphasis upon them. of our largest cities is relevant here. It at different times from all levels of par- I would not pretend that it is easy to seems apparent from reports that in New ticipants. Sound ideas for the people's operate an organization composed of York and Washington, to use but two college are likely to come from the ill- many committed, though diverse, elements. Nor is it easy to allow leader- What we are seeking is an optimum But the conflict itself has value, for it ship to develop at many levels, for per- set of working relationships between can lead to a thorough and fruitful eval- sons who are committed to ideas are local and state leaders all having the uation of ends and means, provided thereis broad-based participationin willing to do battle for those ideas, and some fundamental goalmaximum com- tensions are sure to develop. But would discussion and in decision-making, and munity college service to the people. At a willingness on all sides to use good we really want it otherwise? times, intermediate goals will conflict. ideas, whatever theirsource.

ICHE

( as well as short-range planning, moti- ing minimum qualifications for faculty; vating more boards to give additional final approval of college president ap- considerationtocoordination;and pointments; fmal approval of curricu- changes in sources of tax revenue, creat- lum; developing common approaches ing fiscal burdens on some previous where possible; helping determine where junior college systems. specialization is necessary ; establishing Throughout his remarks, Dr. Watten- guide lines to form the basis for airee- ment between institutions in new pro- barger dwelt on the theme thatstate- wide coordination is effective only when grams;creating the atmosphere for there is an expression, by the governing agreements between the upper colle- board, of leadership and nota drive for giate programs and the junior college. Dr. Buffington presented a different control. He also mumerated otherna- tional trends of community colleges: role than had been presented for junior there will be more community colleges college systems:that the primary em- established in the menths and years to phasis should be on students and the come; we can expect more federal and quality of the educational program; state financial support; every state is the genius of the junior college showing increased emphasis on occupa- system has stemmed from responsive- tional education; and more concern is ness to local needs and local changes; being placed in faculty development and and that democratic institutions cannot GEORGE L. BROWN increased faculty salary ranges. In dis- survive the ever-increasing gap between State Senator, Colorado cussing the responsibilities of what he the citizen and the effect of his vote and Statewide coordination is the most described as an effective statewide coor- his voice. important recent trend in community dinating system, he listed: those related State Senator Larry Kuriyama of juniorcollege developments, asDr. to overall state planning including the Hawaii discussed with, I thought, a lot Wattenbarger said. He listed the rea- establislunent and development of new of clarity and certainly a lot of pride, sons for this trend: recent increases in institutions; organizational structure and what he called the unique, and I quote, concern, interest, and support for educa- staff services; policy-making and insti- "American educational system" in Ha- tion by the federal government which tutional management ; faculty and staff waii where the state government sup- has emphasized the states' roles; the needs; curriculum matters; and the rela- ports and operates the public school requirement that state plans be sub- tionships with other organizations and system from kindergarten to the doc- mitted and approved before federal agencies. He also explained the Florida torate degree. In discussing his system funds are released, giving impetus to system of boards for what he described of five provosts, one for each commu- state function ; the concern state legis- as the utmost effective coordination. nity college, a university vice-president lators have for warranted use of limited This system included a junior college responsible for community colleges who state resources, resulting in the establish- presidents' council, council of academic then reports to the university president, ment of state boards in states which affairs, and the junior college confer- he showed, I think, some indication of previously had given little or no consid- ence for student activities. Responsibil- state coordination in a state system. eration for statewide coordination; the ities fiat he listed for the Florida state The senator also stressed that the term recognition for the need for long-range board included: establishing and wiforc- "community" could tend to present the

56 unfortunate image that the institution populations than those of Florida and that point on as to why they felt they was oriented only at local level and was California. were willing to rush intothe lion's den. noi oriented in a much broader sense, The theme that appeared to run The provocators, I thought, were ex- as he apparently desired. throughout the evaluation sheets was a cellent. Dr. Barrett of Wyoming stress- Dr. Thomas Shay, of the University fear that states were rushing to central- ed that the basic goal of public educa- of Colorado, echoed some oI Dr. Buffing- ization without adequate study, and it tion is to extend the educational op- ton's comments, but he also stressed that seems to are that this is another good portunity to all persons and to improve we are basicallyconcerned with two reasonforafollow-upconference. and expand educational systems to meet factors, thus far not labeled in commu- Some indicated that they wanted more the need, not only of today, but also of nity college organizations: on the one conflict.Some emphasized that local tomorrow. He said that the western hand we want to establish an organ- control and citizen participationare states should ask WICHE to develop a ization which will be effective in serving absolutelynecessaryin community program of coordination to avoid dup- the needs of all the citizens who are or college structures. But I also want to lication of effort in the area of com- migil be touched by community college stress, and I hope they agree with me in munity colleges. activities; on the other hand, we have a my assessments, that what we really deep concern for efficiency and the use mean is involvement of the citizensand Mrs. Thomas Scales asked some very of public moneys, the use of human of the local community and that we serious questions that I think ought to resources, and the use ofphysical re- recognize that control certainly must be he answered in the very near future. sources. balanced among several elements,in- How good are our faculties at our com- The evaluations were all complimen- cluding,Ibelieve, all parts of the munity college level? Why do com- tary for WICHE. Several indicated the community. There must certainly be a munity colleges still tend to be defen- need for a WICHE follow-up, and I balance with the state government and sive? Can community colleges be all suggest that it be in Hawaii. Serious with federal structures. things to all people? How much further consideration was also asked for the Utah State Senator Dean put the edu- can they be expected to expand?Are problem of states which have isolaied cators on the defensive, and there were we going to be in the businessfrom the communities and which have smaller a number ofwonderful remarks from cradle to the grave?

-r=4,

57 PARTICIPANTS ALASKA Mrs. Alfred J. Lomen, Secretary, Leland W. Myers, Associate for Gov- Paul W. Pixler, Dean of Faculty, Fort ernment Affairs, California Coordi- Republican State Central Committee Lewis College William A. O'Neill, Vice President, nating Council for Higher Education C. Stan Selby, Vice President, Board Richard H. Peairs, Director, W estern Board of Regents, University of Alas- of Community Colleges find Voca- ka Regional Office, American Associa- tional Education tion of University Professors Vance W. Phillips, State Senator Thomas M. Shay, Associate Professor Carley V. Porter, State Assemblyman Bill Ray, State Representative of Higher Education, University of Albert S. Rodda, State Senator V. Maurice Smith, State Senator Colorado Mrs. Edward C. Sweeney, Historian, Con F. Shea, State Controller COLORADO State Legislature Kathryn M. Smith, Dean, School of William R. Wood, President, Uni- Frank C. Abbott, Executive Director, Nursing, University of Colorado Colorado Commission on Higher Edu- versity of Aliksa Fred Struthers, Dean of Faculty, cation Rangcly College ARIZONA Nancy M. Berve, Program Associate, Donald G. Stutters, Assistant Profes- Trevor Browne, M.D., Representing Academy for Educational Develop- sor, Southern Colorado State Colkge ment, Inc. Governor Williams Loren F. Tomlin, Dean of Faculty, John T. Condon, Executive Director, George L. Brown, State Senator Trinidad State Junior College Arizona State Junior College Board AllanP.Crawfurd, President, Arapa- Byron K. Trippet, Executive Direc- Vernon Feiock, Assistant to the Presi- hoe Junior College tor, Colorado Association of Indepen- dent, Northern Arizona State Univer- Allen Dines, State Senator dent Colleges and Universities sity Paul A. Elsner, Director, Community Lloyd L. House, State Representative Colleges Division Dermont W. Me lick, M.D., Coordi- Leslie R. Fowler, State Representa- nator, Regional Medical Program, tive HAWAII University of Arizona Calvin M. Frazier, Professor of Edu- Peter Aduja, State Representative Alexander A. Raisin, Phoenix cation, University ot Colorado Andrew T. F. Ing, State Director o Herbert D. Rhodes, Dean, Graduate Donald W. Galvin, Field Program Co- Finance College, University of Arizona ordinator, Federation of Rocky Moun- Larry N. Kuriyuma, State Senator Arthur B. Schellenberg, Secretary, tain States, Inc. Kenneth K. Lau, Assistant to the Arizona Board of Regents; Member, Lloyd A. Garrison, Regional Assist- President, University of Hawaii Arizona State Junior College Board ant Commissioner, Office of Educa- Robert S. Taira, State Representative Bob Stump, State Senator tion, DHEW John J. Uehara, Attoiney, Honolulu Shelby F. Harper, Chairman, Colo- James Wakatsuki, State Representa- CALIFORNIA rado Commission on Higher Educa- tive Reed L. Buffington, President, Cha- tion Willard Wilson, Secretary, University bot College Lowell Heiny, Vice President, Mesa of Hawaii Robert G. Cameron, Western Region- Colkge Vincent 11. Yano, State Senator al Director, College Entrance Exami- Paul M. Johnson, Technical Assistant nation Board I r to Governor Love, Office of Econom- Rita R. Campbell, Archivist and Re- ic Opportunity IDAHO search Associate, Hoover Institution, W. E. Leckie, Assistant to the Dean John Barnes, President, Boise Colkge Stanford University of Faculty, Cblorado School of Mines William E. Davis, President, Idaho, John C. Doyle, Director, Western Of- John A. Love, Governor State University fice, The Council of State Govern- John G. Mackie, State Representative Philip A. Dufford, PresidentState ments Donald C. McKinlay, Member, Colo- Board of Education W. Ballentine Henley, Provost, Cali- rado Commission on Higher Educa- John V. Evans, State Senator fornia College of Medicine, Univer- tion Ernest W. Hartung, President,Uni- sity of California at Irvine Keats R. McKinney, Dean of the Col- versity of Idaho David H. Malone, Professor, Univer- lege, Metropolitan State College Martha D. Jones, M.D., Boise sity of Southern California William E. Morgan, President, Colo- Don LovelankState Senator Jay Dee Michael, Special Assistantto rado State University Helen McKlialey, State Representa- the President, University of California Mrs. William B. Naugle, Member, tive Robert B. Moore, President, Orange Board of Trustees of State Colleges William C. Roden, State Senator Coast College in Colorado Robert E. Smylie, Former Governor 58 MOMTANA Keen Rafferty, Professor-Emeritus, J. Arnold Bricker, Executive Secre- Eugene C. Egan, State Representative University of New Mexico tary, Advisory Council on Higher Stanley J. Heywood, President, East- Harold L. Runnells, State Senator Education ern Montana College of Education Sherman E. Smhh, Administrative Ed K. Erickson, President, Seattle David F. James, State Senator Vice President, University of New Community College John M. Manning, State Representa- Mexico Charles J. Flora, Interim President, tive Dale E. Traylor, Dean, Roswell Cam- Western Washington State College Richard F. Morris, State Budget Di- pus, Eastern New MexicoUniversity Frank W. Foley, State Senator rector Walter F. Wolf, Attorney, Gallup Robert F. Goldsworthy, State Repre- Edward W. Nelson, Executive Secre- sentative tary, Montana University System, Re- C. Wayne Hall, Program Director for OREGON Higher Education, Washington Edu- presenting Governor Babcock Edward Branchfield, Administrative Maurice E. Richard, Member, Mon- cation Association Assistant,Officeof the Governor, tana State Board of Regents Walter C. Howe, Jr., Budget Director Representing Governor McCall William C. Jacobs, Special Assistant, Norman E. Taylor, Administrative J. W. Forrester, Jr., President, Ore- Office of the Governor, Representing Vice President, University of Mon- gon State Board of Higher Education Governor Evans tana Stafford Hansell, State Representa- Richard A. King, State Representative tive E. W. Lennart, State Senator NEVADA Ben Lawrence, Executive Director, Harry Lewis, State Senator Fred M. Anderson, M.D., Member, Educational Coordinating Council Marjorie W. Lynch, State Representa- Board of Regents, University of Ne- Roy E. Lieuallen, Chancellor, Oregon tive vada State System of Higher Education E. John Maier, President, Peninsula Gene F. Empey, Chairman, Higher L. W. Newbry, State Senator College Education Advisory Committee Cleighton L. Penwell, Administrator, Daniel Marsh, State Representative Bud Garfinkle, State Assemblyman Budget Division, State Department of Mike M. McCormack, State Senator Procter R. Hug, Sre, State Senator Finance Gordon Sandison, State Senator Neil D. Humphrey, Acting President, Mrs. Thomas Scales, Program Ad- Richard L Smythe, State Representa- University of Nevada visor, Bureau of Customs, Port of tive N. Edd Miller, Chancellor, Reno Cam- Portland W. Glenn Terrell, Jr., President, pus, University of Nevada Washington State University Donald C. Moyer, Chancellor, Nevada UTAH Robert G. Waldo, Vice President, Southern University Merle E. Allen, Director, Coordinat- University of Washington James B. Sharp, Planning Director, ing Council of Higher Education, Rep- Richard White, President, Shoreline Higher Education Advisory Commit- resenting Governor Rampton Community College tee Peter W. Billings, Member, Coordi- Harold S. Zimmerman, State Repre- Thomas T. Tucker, Chairman, De- nating Council of Higher Education sentative partment of School Administration, S. Bertell Bunker, Associate Direc- University of Nevada tor, Coordinating Council of Higher Juanita Greer White, Member, Board Education WYOMING of Regents, University of Nevada Melburn M. Coombs, Budget Direc- Francis A. Barrett, M.D., State Sena- Frank W. Young, State Assemblyman tor tor Ernest H. Dean, State Senator Arthur L. Juck, State Representative NEW MEXICO Dixle Leavitt, State Senator William D. Carlson, President-elect, Jack M. Campbell, Former Governor ; William P. Miller, President, Weber University of Wyoming Chairman, Institute on State Program- State University Earl Christensen, State Senator ming for the '70's Mildred Oberhansley, State Repre- Charles C. Crandall, President, W est- Douglas Cornwall, Vice Chairman, sentative ern W yomingColkge Bcard of Educational Finance Lorin N. Pace, State Representative Peter E. Madsen, State Senator John P. Eastham, State Senator John David Rose, Staff Associate, Frank C. Mockler, Attorney, Lander Herbert H. Hughes, Chief, State Bud- University of Utah get and Financial Control Division PARTICIPANTS FROM OTHER John J. Mershon, State Representa- WASHINGTON STATES: tive Roger J. Bassett, Executive Secretary, Alan Ferguson, Director, New Eng-, Morgan Nelson, Chairman, N ew Mexi- Higher Education Facilities Commis- land Board of Higher Education, Dur- co Advisory Committee for Higher sion ham, New Hampshire Education Facilities Warren A. Bishop, Vice President Jerome K. Murphy, Special Assistant Eugene W. Peirce, Jr., State Repre- for Business, Washington State Uni- totheSecretary forLegislation, sentative versity DHEW, Washington, D.C.

59 John Dale Russell, Consultant on Gene Hensley, Director, Special Edu- Grace Oiuda Davis, Administrative Educational Finance, Bloomington, cation and Rehabilitation Programs Assistant to the Executive Director Indiana Mrs. Julia Malone, Staff Assistant, Mrs. Donna H. Sharp, Secretary, James L. Wattenbarger, Assistant General Regional Programs Executive Director State Superinterdent of Community W. John Minter, Director, Special Lee Gladish, Publications and Public Junior Colkges,i lorida Programs in Higher Education Information Specialist Alfred M. Popma, M.D., Director, Mrs. Elaine Tanton, Writer-Publica- WICHE STAFF MEMBERS Regional Medical Program tions Assisumt, Mrs. Dorothy Buck, Coordinator, Dutton Teague, Direcif r,Helping Mrs. Jean Davis, Secretary, Nur4ng Student Exchange Program Services Joyce Engel, Secretary, General Re- Kevin P. Bunnell, W ICHE Associate Ian Thompson, Staff Assistant, High- gional Programs Director ;Director, Medical Educa- er Education Mrs. fienae Nelson, Chief Mailroom tion Programs Clerk Jo Eleanor Elliott, Director, Nursing Gwen Ritter, Secretary, Higher Edu- Programs cation Raymond Feldman, M.D., WICHE CONFERENCE STAFF Mrs. Laura Tinus, Secretary, Admin- Associate Director ; Director, Mental Robert H. Kroepsch, Executive Di- istrative Services Heakh Programs rector

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