educational progress \\'. C. Kamp'>chroeder at­ tcndl·d a Fourth Congre'>­ '>tonal l)i,trict dinner in \'r.ichita October 20, 1967.

\\'. C. Kampschroeder died in a \Vichita hospital on ~o­ \ ember 8, 1967, from injuries suffered in an auto accident five days earher Ills assistant \1urle ~ 1. Hayden was ap­ pointed December 5 to complete the unexpired term of the last elected State Supenntendent in Kansas.

\Iurie \1. Hayden ~ con­ gratulated by Go~ ernor Robert Docking after be­ mg named State Super­ intendent on December 5, 1967. kansas educational progress 1858-1967

...... ii

A brief rev1ew of education in Kansas and the ro]e of the State Department of Public Instruction in educational progress from 1858 to 1967

PH!p.tn•d lm \V. C. KA\tt•sCIIIIOEur.n. State SuJwrir~tt r~dc11t of PulJlic Iustructiort 13) Am L r. "l'JJJI()( Kl\10111 0~ June, 1967 kansas educational progress 1858-1967

published by the State Department of Public Instruction 120 East Tenth, Topeka, Kansas 66612 June, 1967

Art and D esign ...... Paul R. Pickerill Photography...... Harold Caldwell Editing and L ay ou t...... Arlin R. Morgan

This publication is made possible through grants to the State Department of Public Instruction by the U. S. Office of Education under authority of E. S. E. A. Title V.

TITLE PAGE PHOTO—The Kansas Education Building, located at 120 East Tenth Street in Topeka, was first occupied by the Department of Public Instruction in October, 1966. This move marked the first time since 1951 that the entire Department had been housed at one location. The building, which had been used by an automobile agency, was completely remodeled to meet needs of the Department with office facilities, a modern system of temperature control, appropriate redecoration inside and out, confer­ ence rooms, storage, and adjacent parking space. The new quarters provide more than 32,000 square feet of gross floor space, which enable the Department to provide many services that were not possible when the staff was operating from five different buildings.

2 foreword

There 1<; '>lrong evidence th,tt educational progreso; m :1\. ,lllsas has not

\wen adequ tr<.>ated in <111\ formal publicatiOn Issued hy tlw 'ilale super­ intendent of pubhc mstruct10n. There arc C<'I tam regulatOr) supen ISOr), c:onsultativc, and lc.tdersh1p I unctions "l11c h 1<.>late to the off1cc of state supNintendcnt oJ puhltc mstruction T hese pc•cJall~ wtth these Junctions

Then, too c:l.mfication of the role and relatioml11ps of the st

It is fitting that an 0\ cn•iew of the offi<.ial '>t.tte agenc\ for cducatwn he .lccomplished at th1s parttcular time. \Y1thout question the person best qualified to prepare such a tre.tttw IS \lr. i\del F Throckmorton '' ho served seventeen years plus eight months as state <;Upt•rintcndent of public instruc­ tiOn He ".ts approached. and he accepted the responsibiltl\ to do the tl<'ccssary researt'h for and the'' ntmg of the manu'>cnpt. The pubhcation of Kamas Educat wrwl Progress will add much to the h1stor) of educatiOn m t Ius state.

W . C. Kampschroeder State Superintendent of Public Instruction

3 table of contents

PACE foreword 3 introduction 0 education in Kansas, 1858-1914 8 The State Agency for Education 14 the middle period, 1915-1944 26 New Educational Developments 30 the state department of public instruction, 1945-1967 38 Educational Progress 3 A New State Agency for Education 44 Improved Department Status 47 The State Department of Administration .56 The State Superintendent in 1967 57 The Educational Secretary 59 Looking Ahead 61 Internal Organization of the Department 63 The Division of Instructional Services 66 Textbook Adoptions 68 The Curriculum Section 71 Special Education 74 Guidance and Counseling Services 76 Titles I and II of Public Law 89-10 77 The Division of Administrative Se rvices 78 School Finance Section 79 School F acilities Services 79 School Lunch Program 80 Statistical Services and School Finance 0 Civil Defense Adult Education 82 School District Unification 2 Division of Ce rtification and Accreditation 9 Teacher Certification 9 Elementary and Secondary School Accreditation 93 Driver Education 95 Kansas Junior Colleges 96 State Scholarships 97 Adult Education 98 fed era 1-state re lations 102 appendix 10 index 114

5 introduction

Dr. I . \\. Brooks turm the State uperintendcnt s offic..c O\ cr to Adel f. fhrotkmorton Ill Januaf) 1949

This re\'ie\\ of educution in Kausas '' luch al o pr( ( nt tJ r I f t state .tgency for education fa11s mto three arl d f I rn•Tl

IS5S to 191-1, the foundatiOns of th .,tat 1 l 1 The offices of .. ta.te and count\ sup(: nntend nt " r trirb w~re organued and prO\""JS n m.ld{ f the School Fund CommJ'i 1 n '' re te l t fund, a state board of educahon '' f rm 1

mission \\as 'i t up to admn 1 ter lfnnn The second, which was a kind of middle period, began with formal establishment of the State Department of Education in 1915. From that year until the Department was restructured in 1945, and designated as the State Department of Public Instruction, the groundwork was laid for achiev­ ing many important objectives that were not immediately attained. Through­ out the middle years state superintendents; educational organizations; and study groups, some of which were formed by legislative action, worked for a better system of school district organization, higher qualifications for teachers, equitable and adequate financial support for schools, high-school extension courses, improved instructional programs, vocational education, better working conditions for teachers, and a stronger state agency for education. The third period, which opened in 1945, introduced what has been re­ ferred to as an educational revolution in Kansas, so pronounced were ad­ vances made subsequent to that year. Between 1945 and 1967 most of the goals envisioned during the 1914-1944 period were realized, and the en­ deavors of more than three decades were rewarded. Better organizational patterns for school districts evolved, the degree standard for all beginning teachers was reached, a school foundation finance act provided more ade­ quate sources of school support, area vocational schools were established, the 1941 teacher retirement act was greatly improved and supplemented with social security benefits, additional services were provided by the State Department of Public Instruction, a state system of junior colleges was developed, and a constitutional amendment approved, which sets up an elective state board of education with authority to appoint a state commis­ sioner of education. This account of educational progress in Kansas has many shortcomings. In the interest of brevity, numerous significant details have been omitted, and but scant recognition has been given to legislators, organizations, and individual citizens for dedicated service that made possible educational gains of the past two decades. Neither have state superintendents or staff members been given the credit due them for their contributions to the ex­ pansion of educational opportunity in Kansas. Fortunately, photographs of all territorial and state superintendents are available, and have been reproduced in this publication as part of the official record. One objective sought in presenting this outline of educational de­ velopments, with some documentation, is to provide a starting point for other and more detailed studies of education in Kansas. Perhaps a review of this nature will help mark the close of the era in which elected superin­ tendents of public instruction served as the chief state school officers in Kansas. ---- A. F. T.

7 chapter i education in kansas 1858-1914

"Sd10ol houses or rude pattern, huilt or log or .. od, prang up c\ery- .. \\ 1u•rc.

\\ hat is thought to ha\ t> bt•en the first frpe school in Kansas for white children on I~ \\as estahli hed in 1851 at ( amcil Cro\ e a trading post on tlw Sa uta Fe Trail in\\ hat is n

See page 110 in Appendix for list of compulsory attendance laws.

9 Two agencies which were to make significant contributions to the expansion and improvement of education were established during this early period. They were the Board of Commissioners for the management and investment of the permanent school fund and the School Textbook Commission. Both included the State Superintendent of Public Instruction in their membership. The first legislative session after Kansas attained statehood created the Board of Commissioners under constitutional author­ ity.5 The State Superintendent as secretary, the Secretary of State as chairman, and the Attorney-General have constituted the membership of this board from its creation to the present time. The permanent school fund, the earnings of which must be ap­ propriated for the support of common schools, consists of pro­ ceeds from the sale of school lands and the estates of persons dying without heir or will. With minor exceptions, the school lands consisted of sections 16 and 36 of every township given by act of Congress to the state for the support of its schools. All of these lands have been sold, and the proceeds constitute a major portion of the permanent school fund. One concern of early state superintendents was that the edu­ cational benefits to be derived from school lands not be dissipated. One such official was Peter Mac Vicar, who reported how specu­ lators attempted to gain possession of these lands for their own profit through questionable practices. One weakness of the sale procedure was the authorization possessed by county treasurers to sell these lands at private sale when no bids ecpial to the ap­ praised value had been received.6 An action destined to have a profound effect upon education in Kansas for sixty years was taken in 1897 by the Legislature, upon the recommendation of several state superintendents, when it established the School Textbook Commission. This agency was charged w ith the administration of a uniform statewide textbook adoption system. This act, together with later supplemental legis­ lation, served worthwhile purposes until the W orld War II era, after which newr techniques of instruction, better prepared teach­ ers, and the availability of many kinds of instructional materials outmoded the use of uniform textbooks throughout the state. The state superintendent served as ex-officio chairman of the adoption agency until 1945 when its responsibilities were assigned to the lay state board of education, leaving the state superintendent without jurisdiction in this important activity." This assignment

°See page 108 in the Appendix for textbook adoption agencies, 1897-1967.

10 was a factor that led to the end of the state textbook adoption program sixty years after the original system was established. In 1858, the Territorial Legislature created the office of county superintendent, and gave that official authority to certify teach­ ers.7 One year later he was assigned the task of organizing school districts in the territory.8 The Wyandotte Constitution, under which Kansas became a state, followed the pattern set by the Territorial Legislature, and reinstituted the office of county super­ intendent, which served for one hundred years as a foundation stone in the state’s educational structure. lie was authorized to continue organizing school districts by dividing the county into a convenient number of such units.9 With convenience as the only stated criterion to guide county superintendents, schools were established within walking distance of most pupils. The general practice was to build schoolhouses at two-mile intervals, each within a district governed by a three-man board. By 1896, thirty- five years after Kansas became a state, 9,284 districts had been formed. The operation of this system required a veritable army of board members, which at that time numbered more than 27,000. As late as 1945, board members outnumbered the teach­ ers in the state by several thousand. The basic principles upon which the Legislature developed a statutory framework for governing school districts were brought to Kansas by thousands of immigrants from the New England states, who were familiar with the town meeting form of gov­ ernment. Within this kind of structure school district issues, which included the election of board members, determination of how much was to be spent for operation of the school, and some decisions of a trivial nature, were by law placed in the hands of an annual meeting of electors of the district, who conducted busi­ ness in town meeting fashion. Only a handful of electors attended the typical annual meet­ ing but, when patrons and taxpayers had been aroused by some highly controversial issue, everyone made it a point to be there. Then the meeting could, and often did, get out of hand and pro­ ceed to crucify an unpopular teacher or board member. Before this type of school government was abandoned, districts in urban areas with population running into the thousands found the an­ nual meeting to be an anachronism painfully illustrative of how difficult it is to revise governmental procedures. The elected board employed the teacher, kept the building in repair, and purchased the meager supplies sometimes provided

11 for the school. Most hoard members faithfully performed their duties, hut in hundreds of one-room school districts they paid little attention to Roberts Rules of Order, failed to keep minutes of their meetings, and made many decisions outside legally called sessions of the hoard. It was not unusual for two board members to employ the teacher, simply notifying the third man of their action. Many* boards were dominated bv * one man, * who assumed that his election gave him a kind of divine right to dictate policies of the school without the formality of a board meeting. There were enough of these practices, and other exceptions to good school government, to condemn the system of fragmenting re­ sponsibility for the state’s educational program among thousands of ineflcctive districts. This type of school government, found among all districts except those in first and second class cities, remained in effect until a district unification program eliminated the annual meeting. The county superintendent not only created school districts, but certified teachers, conducted programs for upgrading instruc­ tion, kept statistical records of the schools under his supervision, gave assistance to the state superintendent, answered questions about school law. made needed changes in school district bound­ aries, conferred with school boards, and supervised educational activities in the county. In fact, he was the chief school officer of the county from pioneer days and continued to fill that role until importance of the office declined when rural population shifted to urban areas, and a more efficient plan of school district organization developed. Unfortunately, adequate support of the county superintendent was withdrawn at a faster rate than respon­ sibilities of the office were eliminated. By 1900 most of the legal structure within which Kansas education developed during the ensuing forty-five years had been established. The Constitution had created the offices of State and County Superintendent, and a Board of School Fund Com­ missioners to manage the permanent school fund. By that date, the Legislature had formed a State Board of Education to certify teachers; made provision for a uniform system of textbook adop­ tion under the direction of a commission; and carried out the requirements of Section 2 of Article 6 of the Constitution by establishing a system of common schools and schools of higher grade, embracing normal, preparatory, collegiate, and university departments. ]A \IFS Jl '\IOTF\\'ARF, "ho was horn in 1817, ",1, till fir, I territorial 'UJl erintcndcnt of common ,c·hool, Ilc "a~ appoinlt'd to that ofTitc b) acting l crritcu1.tl Ccl\ernor Jamt' \\'. Dt•mer, and \ened 111 th.1t po,itwn from \lard1 5. 1S5b to De<: ember 2 of th.1t 'ear. The olfice had been created b)­ the fir,t fn•t·-,tah: I erntonal I q~i,Jature in Feb­ ruan. l~5 .s. Little j, kno" n of Supcrint<.·nclcnt '\ote,,.ue\ \\Ork dunn~ h1, ,hort tc1111 in offi<.e a' he left no rt•tord of lm off1ual at h.

SA \Ill L "ILEl C.HEEH. ''ho mitiatul the \\ork ol the e·ducat10nal 'upenntencknc~ in h. amn,, ''a' de<. ted to \C:n e a' the \t•cond tcrritonal \upcrin­ lt•ndent of c·ommon \ehool' on October .J , I 1>56, and took offlte the folio" mg December. flc "a\ horn 111 ~ II<. ~ha n) ( ounl). Penn" ham a, on June 2, 182Ci, and died in \\ infic·ld, han'a~ on Scpte·mber :w. I SS2 During lm tum o( offic<.•, "hith C'-· h:ndecl to J

JOII'\ (. DOl C LA S~, tlw third and Ll\l temtorial 'upenntt•JHlc·nt. \en ed onh on<.• month in that po\IIHm from Januar' i, 1SCH to Fcbrua£> of that ) t•ar. I le ""' born 111 ll•ghland County, Oluo on Du.embc:r I I. 1521. and .1 pparenth Ji,cd a full Ide \mom~ other qualifieallom. he hdd an honor­ an de·~H·c of \fa\lt'l of 1\rh from Ya le, the degree 8 .1<. htlor of I '" s from I1.1n a rd. and "·" adnuttcd to the r ex a' bar lie came to h .1m.1' to help make •t .1 fn·e· \tatt·, a nd 'l'ncd 111 tlic Union army dunn~ the Ct\ il " .tr

13 The State Agency for Education Although the first Kansas schools were established prior to organization of the territory under the Kansas-Xebraska Act of 0 a 1854, it was 1858 before the first Free-State Legislature created the office^ of Territorial Superintendent of Common Schools. The pro-slavery Legislatures of 1855 and 1857 had made no provision for such an office. James II. Xoteware, the first superintendent appointed under this act, served only nine months. lie was fol­ lowed bv Samuel Wilev Creer, who was the first elected territorial superintendent. The third man to hold this post was John C. Douglass, who was in office only one month before the first state superintendent, W illiam Rilev Griffith, replaced him in February, 1861. Little is known about Superintendent Xoteware’s work as he left no record of his official acts, except a textbook recommenda­ tion. On the other hand, Superintendent Cheer, who traveled

extensively over the territory* and recommended many * educa- tional improvements, has been credited with initiating the work of the Kansas educational superintendency during his term of office from October, 1858, to January, 1861."' In general, duties of the territorial superintendent consisted of visiting schools, con­ ducting meetings, preparing report forms, collecting statistical information, recommending textbooks, acting upon appeals from school districts, and distributing funds to the counties according to the number of children of school age. The state superintendent was the official state agency for edu­ cation from the creation of that office until the first state board of education was organized under legislative authority in 1873.° The duties of this board were limited by law to issuing state di­ plomas and certificates to teachers." The diplomas, granted upon examination, were valid in any school district of the state during the life of the teacher. Prospective teachers who could not qualify for a diploma might meet requirements for a certificate upon pass­ ing an examination but, unlike diplomas, the certificates, which were of two grades, were valid only three and five years, respec-

tivelv.0 A concluding provision of the act creating the State Board of Education reflects the frugal mind of the Legislature. Included in the law was the limitation: “That the provisions of this act shall he carried out without expense to the state.”12 It was not

°See page 42 for composition of the State Board of Education.

14 until twenty years later that $300 annually was appropriated to cover the expense of members in attending meetings of the hoard. Evidence of hard times and reverses for education in the first two decades of the state’s history are revealed in the First Biennial Report of Superintendent Allen B. Lemmon in 1878. According to this record, 1875 legislation was prejudicial to schools. County superintendents’ salaries were reduced, and in 1876 there was an attack on the three normal schools. The Legis­ lature refused to make appropriations for any of them and thereby forced the closing of the two at Concordia and Leavenworth. The Emporia Normal was able to continue as a private enterprise. The state superintendent also received rough treatment during this period when the Legislature reduced his annual postage allowance from $225 to $150 so the Fifteenth Annual Report of 1876 could not he distributed. To top off all this retrenchment, the state superintendent was required to return to the Commis­ sioner of Insurance the desk he had borrowed from him.13 The relationship between the state superintendent and the state hoard of education from its organization in 1873 until 1915, when the Legislature created the State Department of Education, was not clearly defined by statute. In some instances the hoard made policy which was administered hv the superintendent, hut in many activities the hoard carried out the department’s adminis­ trative functions, thus relegating the state superintendent to a kind of chore hoy, except as he was able to exert leadership out­ side specific statutory authority, and fill his roles as a member of the state board of education, the school fund commission, and the textbood adoption agency. This relationship is discussed in a study of the State Depart­ ment of Public Instruction by John L. Eberhardt at the , and published in 1955. “Both the board members and the state superintendent participated in administering such programs as the preparation of courses of study for couutv insti­ tutes and the public schools, and in the accreditation of colleges. In manv eases both the superintendent and the board seemed re­ sponsible for developing policy. The actual practice for dividing duties and allocating responsibility remains obscured in the in­ formal practices. Coordination of effort was achieved, appar­ ently with success, by the dual role of the state superintendent as the leading member of the state hoard of education and as an independent officer responsible for the Department of Edu­ cation.”14

15 WILLJA~ f WILEY C HII FITH wa' elected the first \tah: '>uperintt•ndent of pub!J<. in­ ~truction . and held that office from rcbruan' 1861 unlll Ill\ death in I ebruary of 1862. Ile "'a' born m Tippct.u1oe Count}, on Ma} 8, 1820, and mo\Cd to Bourbon Count) , J,.ama\ in 1855 lie wa\ an invalid most of the lime he \hi\ 111 office IIi'> re­ port for IMil \hO\H that t\H•he count} su­ perintendent\ made report'>, most of ,.,hich \\.ere '>O tnt.omplete he could not comptle \tatistiC\,

'>I~ l £0'\; \ f T HORP. '' ho "as appomtcd \t.tte superintendent on \ larch 2 • 1 SG2 by CoHrnor Charle\ L Robtmon to fill the \J­ eane) left h> the death of upcrintendent Griffith, \en ed until Janu.lr}, 1863. During lm nine month, in office he published a re­ port for 1<,CEt "hich indicated that 304 \<:hoot di\trit. h had been or~ .tnized ,., ith 1 t,- 9i6 children t.nrolled. a' 'ho,,n h> report.. from h\cnl) t.ount) \upcrintendenb. \lr Thorp, ,.,ho n· pre~ented Doucl~ Count\ in the state tnate. ''a.. killed in Quantrill\ raid on La,Hutu: on Au~u ' t 21. 1~6 3.

16 I A >\ C T. COOD'\ 0 \\', '' ho wa\ \tate su­ perintendent from January, 1863 to j anuary, l8Gi, wa\ horn in \\'indham County, Ver­ mont on Januan li. 1 1-t. H e tame to Kama\ in 1855 from a profe\\orship 111 Pro-.i­ dem.t• em mar). Fa\t Grt•cnwich, Rhode hland lie '"" one of the founder., of :\Ian­ hatt.ln, Bluemont College, and the tate Agritulturnl College, and provided strong lead<. r.,h ip tn the \late \uperintcndcnt \ offict•. upt•rintendenl Goodno" \pent a great deal of time in the field lecturmg and attending tcather\ mcetin~\ and imtitutes. l ie made nurnt•rou\ recommcndatiom for educational impro-.emcnl\; and rcportt•d in I Sli6 that there were in the \late 871 \chool di.,trict\, 1,0<;(; teacher\, and 5-t,OOO .,chool t hildren. uperintendent Goodnow cited at \fanhattan on \larch 20, 1894.

J>CTER \lac\ 'TCAR. "ho ''a' horn in St. George, 'lew Bruns'" iek, Canada, wa<; t•du­ t•ated for the ministry before mif{rating to hansn., 111 18() () H e \cned l\\0 tenm as \(ale \Uperintcndent from Januan, 18G7 to Januar), 1871, and pto' idcd outstanding leader,hip in that office Superintendent \lacYit·.tr hnd .1 ''ide range of intere.,h a~ mini\ter, educator, lecturer and writer. As a \late official, he pro' ided tnll(h needed lt>ader.,Jup in dt•\ doping a ~chool "<;tem and 111 prott·ttmg t·du<.ational intert•\h from the desigm of ~elf),Jt men on the \late's .,chool land\. lie "orked for an impro' ed curnc­ ulum. \thool prn tl ege., for :\egro children, a '>~tem of retord keeping for .,chool di\­ tncts, and other objectn e\ tl1nt \ince ha-.e been att.tined After lea' ing the \ tate office Supcnnlt>ndent \ lacVtcar \erved for h"~\ldent of \Vashburn College. l ie died in Toptka on June 5, 1903.

17 II UGH DE I H \ '\CI ~ \l<.C'ARTY '"as born in \\!a~hington County, Pennsylvania on \larch 9, 1822. Bc•, td c'> \ening as state 'uperintendcnt from Januar}, 1871 to Jan­ uar), 1Si5, \lr \It( .trl\ '~a\ the fir\l editor of the k.tn'·" L du< 1twn.tl Journal. helped organi.~:c the h. an'" 1-,tatc 'fcachen A\\O<:ia­ tion, held thl \IH·Prt"dcnn of llt ~h land niH•r\it' .mtl lnturt·d in the medical wl­ lege at t Jo,c·ph \li"ouri :\\ state \upcr­ tntendcnt ht n·u11nllH ndt•d a to,~n,htp d"· tnct ~> \lcm, da"ifi< .ttton of \<.hooh, graded \thool '>·,tcm,, t'llll1!Htl,or} education, and the estabJi,Jum·nt nf a 'tate board of educa­ tton A l;m ttTating \tt<;h a board '~a' en­ acted 111 1&7:3.

JOII'\ LAWRE:\'CE FRA ER. state super­ intt•ndent from Januat"), 1575 to January, 1&77, "a' hom on ~larch 22, 1827, in Count} of Cromarl}, in the north of cot­ land lie graduated from the L niHr'>it} of Aberdeen '~ilh highest honon, taught in Bermuda, \\ e!.t Indies, and at Jcffer\On Col­ lege m Penn" hania; ~en ed a\ prt·\ident of tlte tate Agricultural College at Bellefonte, Pcnm) h anta, and became ch.1n<:<:llor of the l niH·nit) of kansa~ in ISGS. lie rc'>i~ed from th.tt po~•tton in 1 i 4 to ta'-e office as 'tall' 'upcrintendent, Ht'i Ia 'it "ork Wa!. as profc"ur of political econorm in \\'e!>tern {., ni\l:r... ,t,. Penns} h ania . lie died on June 4, 11li~. after ha' ing been plagued h) ill health mo~t of lm hle.

18 ALLEN BO LEY LE~ I MON held the office of !> late \uperintt'IHlent from Januar), 1877 to JanuUpcrmtendent\ report\ were made an­ nuall} uperintcndent Lemmon was the fir,t to "'ue a biennial report which covered the t" o )'ears 1877 and 1878. It dealt with .1 ''ide range of 'ubject\ related to educa­ tion and recommcndatiom for needed legis­ lation. k. amas count) normal institute\ were t•,tabti,Jwd durin~ his fir,l term in office. \fan} thought tlw <:ount} imtitute\ pro' ided a better di,tribut10n of normal edu<:ation than had the \tate normal \chool'>, which ''ere dt·pm eel of \late \upport b) the 1876 Lc.l!;t!>laturt• upenntendt•nt Lemmon died Ill Lm An~cle~, Californi

IIF'I.R\ CLA'a ~PLER ''·"born in Jackson, \h'''"'PP• on Dccembt•r 22, 1&49 and ~cllled in Lawrence, 1\ ama' in 18G7. H e "a' 'talc 'upcnnlt•ndt'nl from Janu.try, 1881 to Jh:rn ~chool Journal 'oon after lea" ing olhce. 'l.o 'ignifit,ant ,chlatl()n wa~ enacted dur­ in~ ~U(>enntendt nt pt'n\ admini,trahon althou~h he madt' fort•\\ ani lool..m~ recom­ mcnd.ttwm for \Chool unpro\ cmtnt, '" hith indudt•d a gt•nt•ral \tate ta>. and a to'" mh ip di,tritl nrgani1.1lion J (i, \t'an in office .lp­ pcar tu ha' c hn·n qmt•t one:. \1r pur died 111 Hedl.uHh, California on t•ptl·mber 2, 19Hi

19 JO "EPII IIADDL \. L.\\\ IIEAD held the office of \late \UPl rmtendtnl from Januar), 1'>85 to Januar}. 1&89, aftl'r h:n in~ \Cn cd a\ count\ ' uperint<:ndent of Bourbon Count}. \ bo, ht• had rcprt·,t·nted th.1t count\ in the House of Reprc\t·nt.lti\C' for the >t·.l r\ 185 1 and 16&2. \fr. L.n' Ia·ad '"" born in L nion­ to" n, Pt·nm} h ania on Au~mt, 2.3, 18:11, and cllcd on .\ u~u '>l 1h, 1$92, "hilc holclin~ tlu: office of territori.tl 'uperintcndcnt of \chooh in . A '·"' pr<)\ 1ct.ng for the or­ ganizatwn of tounl} high-\chool di'>trict'> ''a\ cn.H.h:d dunn~ hi' .1drnini,tr.1tion in 1b 6, and, '' hilc in office he urged that a one-mill ,tate Ia-,; he lev1cd for ~clwo l pur­ po~e~ \lr Lawht·.td died 111 Gutlmc, Okla­ homa 1111 .\ ugu~t W, 1892

GEORCl~ \\ I: LEY \\1'\A). • ,,ho wa' born 1n Alban> Counh, '\ ew l orI.. oo .\u­ gu ~t 15, 1846, moHd to Topeka m 1868 and \en ed t" o t<.·nn' as ~ t ate supenntendcnt from J.muar}, 1'>S9 to J.muar}. 1~9.3 H e ''a\ 'HII qualified for the position, and spu1t much of hi'> tunc in thc field in chare;e of norm.ll lll'>titu tc' upcnntendt·nt \\'mall\ "a' intut·,ted 111 \Cttin~ up a ~} 'ttr 1 of free tc,tbouk' in \thoo l ~. and '~a' <.oncerncd about IO\\ of monC)- from the p<:rmanent ,chool fund, "' a re~ult o( the purcha'c uf fraudult•nt bomh, and th<.• failure of one tit) to rcdtt•rn q 00,000 ol bond!!> that had been i~mcd t·.lrlier \uperintendent \\ mam dicd at llutdumon, k an.:.a' un Januar. 14, 1918.

20 IIE:\Rl '\EWTO~ GAI'\E sened one lcnn a~ '>late <.ttpcrintendent from 1893 to 1895. lie v.a., horn in Morgan County, Illinoa'> on October 27, 1859. H i\ education '~as obtained through home ~tud }, attend­ ance at count) nonnal in.,titutes, and a coune at Kama\ Normal College in F ort (_,cott "here he graduated with honors in 1S88. Prior to becoming \tate superintend­ ent he taught in the Diekin\On County high '>Chool and in alina '\jormal niver it}. \\ hile m the \tate office he urged a state­ " ide ta' for '>c:hool ~uppo rt as had '>everal of hi~ immediate predece\\ors. Mr. Caine'> died at Topeka on j uly 27, 1928.

1• D.\lU'JD LAWRE'\CE STA. LEY, who held offke <1\ \tate \upcrintt-ncl~o·nt from 1895 to l S97, "a' born an Ilenclrit k'> Count}, l n­

21 WILLIA 1 TRYkFR was born in Stryker\­ ' ille, ev. York and at the a~e of fifteen moved ''ith his parenb to \\ atenille, Kan­ !>as. lie was state \uperintendent one term from 1897 to 1899. lie aho \crved for eight years a~ pre~idcnt of Central '-oormal College in Great Bend. Supenntendcnt tryker was in office during a penod in "luch but little ~chool legislation wa\ enacted. The fint law providing for a -; tatewide sy\tem of uniform textbook adophom, which he had recom­ mended, "as pa\\ed 10 l 97 After leaving the state supenntcndency he purchased a newspaper in Wellington. lie died in Tulsa, Oklahoma on Fcbru,lr) 25, 1918

FRANK NEISO~. \late superintendent from 1899 to 1903, was born on December 4, 1865 at Andover, . He graduated from the Universil} of Iowa in 1892 and came to Kansas that year. lie became dean of the normal department of Bethany Col­ lege at Lindsborg, ''as a member of the k ansas Academ} of Language and Litera­ ture, and of the Universal Hi~tory Associa­ tion. uperintendent :\lelson was an eloquent speaker ''ho lectured wideh He died m ~linneapohs , ~linnesota on Juh 2i, 1941

22 I C,L£1 L. DAHIOFF "a' elected ~ t a te \ Ul')Crintt•ndent after ha, ing been county su­ pt:rintcnclt•alt of Rt•no CountY from lf)96 to 1902. II t' held the 'tate offite from 1903 to 1907. Tim lean period, as far as school leg­ i,Jation "tl\ COJl(;t•aned, failed to pa oducc manY educational t:ains a lt ho u ~ in 1903 a 'mall apr>roprialton '"as made to suh\ldi7c mdmtri.tl t•dueation program\ an high \chooh. \ fter lea' in~ school "ork, \lr D ayhoff be- l .11nc a \alc\man for the t.111 dard Oil Com­ pam in "hith po, ition he '"orked until re­ tirement 111 1933. lie died in Independence, \11\ ~0 un at the a~t· of nint•ty-onc on \ Jav :24, 1959

1 D" \HD T I \ IRCI IT LD '"as one of tht• fev" \tatt• \Upt•nntendenl\ to be t• lt·cted "' man) a' three tunt'' to that office l im' C\ cr. he rt·,i~m·d Ill '""ember 1912 bdorc corn­ pletint: hi' third Lt·rm lie ''·" horn in Do' It·, ton, Ohao on Ot toht•r 30, 185 t H t• .att~nd t·d Ohao \\ csle\ an Uni\ cr\ll) and \\ oo,tt·r L lliH'r\11\ in . and H'CCI\ ul .Ill lwnor.tr) \1,1\ter' dq~rlc from J...am,l\ late \~ritultural Collcgt• lie aho recei' cd ., Pel I) clt•grt•t• from Baku· LmH'r\lt) \tr Ctirdulcl 'cn t:d ·" a n.·s.wnt of J... .'"'·'' St.ttt• \ ~nualtura l ( ollt·~t for t·i~h t een H·ar' from lf)8H to 1907 lit• died 111 Durham, '\Je'" ll.llllp,hirt on ).tnuar) 2:1, H)l i

23 Until 1870 the state superintendent had no staff, professional or clerical. Besides writing letters, attending to the clerical work of the office, conferring with officials on legislative and educational problems, and providing leadership for the schools, State Superin­ tendent Goodnow, 1863-1867, reports that he visited 29 counties, traveled more than 4,000 miles, and lectured from one to four

times in each countv.¥ He made detailed recommendations re- garding school district organization, and worked against legisla­ tion that tended to misappropriate funds derived from the sale of school lands. He contended that the new state should build a university, an agricultural college, and a normal school rather than encourage weak denominational schools at the expense of strong state institutions. Superintendent Goodnow also advocated that school districts he compelled to use uniform textbooks.15 When one considers that there were no telephones, automobiles, im­ proved roads, or clerical assistance for the office, it becomes obvious that the state superintendent did not schedule his pro­ gram in a forty hour week. The first appropriation of funds for clerical services in the state superintendent’s office was made in 1870, and an assistant state superintendent was provided in 1879. Expansion of the office did not keep pace with educational development or the state’s growth along other lines. In 1910, 40 years after the first clerical assistance had been allowed the state superintendent, his staff was limited to the assistant superintendent, an inspector of normal training high schools (this position was dropped in 1912), a bond clerk, a statistician, an index filing clerk, and one stenogra­ pher.16 The state agency for education did not rate very high during most of the first century of its existence. Although he had a limited staff, the list of activities engaged in by the state superintendent during the period from 1861 to 1914 is an imposing one. It included collecting statistical data regard­ ing schools from county and citv superintendents bv means of quarterly and annual reports on forms prepared by the superin­ tendent; engaging in field work, which was required by law during early years of the period; lecturing at county institutes and teach­ ers’ meetings; holding conventions for county superintendents; issuing reports; publishing school laws and interpreting them; cooperating with the Kansas State Teachers Association and other groups; keeping an eye on school lands and the methods used in selling them; and, until 1873, serving on governing boards of state institutions of higher education. He also acted as administrative

24 officer of the state board of education; accredited colleges; con­ ducted examinations; prepared courses of study; served as chair­ man of the School Textbook Commission, as secretary of the School Fund Commission, and as a member of the State Board of Education; and, most important of all, provided educational lead­ ership for the siate. The state superintendent of public instruction has always been a busy individual but, until recent years, he has not had funds, personnel, or facilities with which to help carry the respon­ sibilities placed upon him by the Legislature and citizens of the state. Moreover, the salary paid this official has never been com­ mensurate with the burdens placed upon him. Until 1947, the highest salary paid a state superintendent was $3,000 per annum, a figure set in 1915. Today, some students of government contend that the chief state school officer is one of the two or three most important officials in state government. Apparently, the word hasn’t gotten around. chapter i references 1. P. J. Wyatt, “School Then and Now,” Heritage of Kansas (Emporia, Kansas: Kansas State Teachers College, 1963), p. 5. 2. Ibid., pp. 9-10. 3. Peter MacVicar, Eighth Annual Report (Topeka: State Department of Public Instruction, 1868), p. 40. 4. Kansas, Session Laws (1874), ch. 123, sec. 1. 5. Kansas, Constitution (1861), Art. 6, sec. 3. 6. Peter MacVicar, Ninth Annual Report (Topeka: State Department of Public Instruction, 1869), p. 35. 7. Kansas, Territorial Laws (1858), ch. 8, sec. 26. 8. Kansas, Territorial Laws, Organization Act for the State School System ( 1859), sec. 15, p. 3. 9. Kansas, Session Laws (1861), ch. 76, Art. II, sec. 2. 10. L. C. Wooster and Others, Columbian History of Education (Topeka: Kansas Historical Library, 1893), p. 5. 11. Kansas, Session Laws (1873), ch. 133, sec. 1. 12. Ibid., sec. 3. 13. Allen B. Lemmon, First Biennial Report (Topeka: State Department of Public Instruction, 1878), pp. 15, 42. 14. John L. Eberhardt, “Kansas Department of Public Instruction,” Gov­ ernmental Research Series No. 14 (Lawrence: University of Kansas Publication, 1955), pp. 1, 6-7. 15. Isaac T. Goodnow, Fourth Annual Report (Topeka: State Department of Public Instruction, 1864), p. 8. 16. Kansas Educational Directory (Topeka: State Department of Public Instruction, 1910).

25 chapter ii the middle period 1915-1944

"The t. ounh \Upt nntcndcnt . . condm h cl pro •r.un' for up~radm Ill· ~tru<:tion .111d ~upt.niscd cdu<.:Jtton I acthitic' an tht. t.ounh."

Tlw lllajor contiilllttion'i to educational p1ogn·ss het\H 11 H)l.t) a nd HH5, which ndgltt appropn.tkh be tef{rH.d to as th ~ l iddll' Period i11 K.lll'i.ts f'ducation, \\lre illlH)\,tti m'i that l.ud the g; t ouud,, ork lot m.tjor g.tins in l.tlct \tat 'i Jllustratl\ · of tht·w dt•\ elopmcnb \\ C't e: I ht founding Ill 191- ,f the first JU collt·ge~ in K.msa' th.tt c hm.t\C d 111 ] 965 '' 1th tl. t bli'll r of n :-, tate ~'stem of commmuh ju11ior c ,JI g -.. th n l.m in 1911 that .ut t hoti/cd s<. hool') t > pa t rt"imbur ... ed 'ocational £ ducatwn pro..,r m dudcd a ~t.tte s\ sten1 of 'ocati m,tl tcdmt<. tl tct hnic:,d i11 titu.te, legJ'il.ttt m Ill l CJ:):) th t 1 1 r high choob led to iucn a'iul e: "P m i 11 f tl tion foiJm, inez chool di'ilnd m Iftcati 11 ftt Other achievements of this period included legislation that created a State Department of Education, composed of the state superintendent and a state hoard of education, thus partially clarifying the relationship between those two branches of the state agency for education; enactment of a law that provided for the organization of rural high school districts; revision of a library law to require minimum purchases of books from approved lists for school libraries; and legislative action that annulled authority of the 105 county superintendents and the eighty-six first and second class city boards of education to certify teachers, thus leaving only the State Department of Public Instruction and the three teachers colleges with such authority. Following the recommendations of State Superintendent W. D. Ross, the 1915 Legislature established the State Department of Education.1 This legislation was designed to meet the state’s educational needs arising from population growth, an increasing number of high schools, the expansion of institutions of higher education to prepare more teachers, the desirability of better pro­ cedures in the accreditation of high schools and teacher educa­ tion programs, and the demand for improving instruction at all levels. Prior to creation of the Department of Education, the statutes did not make clear where duties of the state superintendent and the state board of education began and ended. In fact, policy making^and a great deal of administrative authority had been in the hands of the state board with the state superintendent exer­ cising leadership functions as best he could. The 1915 legislation did clarifv many points but most policy making and some admin­ istrative functions were left with the state board of education. One significant feature of the law that created the Depart­ ment of Education was failure of the Legislature to take seriously the constitutional provision that “The State Superintendent of Public Instruction shall have the general supervision of the com­ mon school funds and educational interests of the state . . .,”2 by placing such supervision and policy making powers in the hands of the state board of education. However, the 1915 organi­ zation of the Department of Education was, for the most part, logical although later there were challenges to the constitution­ ality of giving the state superintendent a minor role in relation to the state board of education. In 1947 and again in 1965, the ruled against delegation of legislative powers to certain boards,3 but did uphold the Legislature in dele-

27 gating such powers to the state superintendent of public in­ struction. In addition to creating the Department of Education, the Legislature made provision for enlarging the staff by authorizing the state superintendent to appoint two elementary and two high school supervisors whose duties included a school visitation pro­ gram as part of the accreditation procedure, in a move to improve instruction in the schools. The state board of education also received an appropriation with which to employ a secretary who, in words of the statute, “shall be an expert in education.”4 The secretary was directed to serve as an inspector of colleges and universities accredited bv the state board of education, and have charge of all matters relating to teacher certification. A major share of the credit for creation of the Department of Education and expansion of the state superintendent’s staff belongs to State Superintendent \V. D. Ross. He was appointed to that position in November, 1912, and, after election in that same month, continued in office until January, 1919. In addition to the many programs initiated during his administration, he made many recommendations which did not materialize in action for many years. Among these were his suggestions for expanding health and physical education programs in the schools, the estab­ lishment of a teacher retirement svstem which finallv materialized in 1941, and for appointment of the state superintendent by a state board of education. This recommendation was carried out when the Kansas electorate, at the general election of 1966, ap­ proved the adoption of a constitutional amendment that provides for an appointive state commissioner of education. One of the more significant responsibilities assigned the new Department of Education was the task of accrediting high schools. The University of Kansas was the first accrediting agency for Kansas high schools, having administered that activity from the 1870’s until enactment of the 1915 legislation. Transfer of this authority to the Department of Education followed the criticism of public school officials, who charged that the Universitv over­ emphasized college preparatory work in its accreditation program.5 In 1876, the University issued a circular to all school boards urging establishment of high schools with a definite and uniform course of study. A committee appointed by the Board of Regents prepared a three-vear course of study that year. The University catalog listed four accredited schools, the only standard being

28 WILBERT DAVID ON RO. ''a' born m \\'a ~ hin g t o n , PennS) h a nia on Augu '> t 9, 1870. lie reccl\ ed A. B . and \ L A. degrees from the niver !> ity of h.ansa'> ;l(ter which he tau~ht and \en ed 11\ county ~ up c rinte ndent of Jeffer\on Count) from 1901 to 1905. From 1909 to 1912 he ~cr,e d a\ high-\chool in­ \pector for the Uni\Cr!>it) of Kamas, which accredited high ~choo h until 1915. igniS­ cant \chool legislation was enacted during Superintendent Ro\\\ term in the \ tate of­ file, "•hich e'\tended from 1913 to 1919. Laws were pa\\ed organizing the tate D e­ partment of Fducation, authorizing the for­ mation of rural high-school di!>tricts, pro­ dding for the accreditation of schools by the 'tate board of education, and adding cle­ mentar} and wcondar) school supen is or\ to the ~ t a t e superintendent'!> \ tali. Mr. Ro!>s died in Ne" ton, ~ l as!>achu,ctls on Augmt 16, 191-1.

LORRAT'\E L1 IZABl Til '\OOSTl' R, the onl y '"oman to hold the office of state !>uper­ •ntendent, "a!> elected 10 the fall of 1918 and filled the pO\ttlon from Januai), 1919 to ),lnuar):, 1923. She '"a' born in teubcnville, Ohio on Juh 24, 1871 \ fi" Woo,ter had an e;>..cellcnt cdu<.ational background, gradu­ ating from Kan~as State ormal a nd the l ni' er\it) of Kansas "here \ he obtained a '\hl\ter\ degree Aho, \he ''a\ admitted to the KatNl\ bar in 1914. Among h<.•r other au.ompJi,hment\, ~h'' \\ oo,tcr wa<, the au­ thor of 'c' eral tcxtboo'-'· he died 10 Ch•• <.al.(o on July 4, 1953.

29 the adoption of a uniform course of study. The four high schools listed as accredited were Atchison, Emporia, Lawrence, and Winchester. By 1883, high schools desiring accreditation were required to send to the University a copy of the adopted course of study in use and copies of examination questions. Thirty-six high schools qualified for accreditation in 1886 with seventy-seven acquiring that status by 1896. About that time there arose a demand for definite standards for school accreditation but it was not until 1905, when W. II. Johnson was appointed to serve as a high school visitor, that more effective accreditation procedures were adopted. W. D. Boss, later to become state superintendent, was appointed to assist Johnson during the latter years that accreditation was administered bv the Universitv. The accreditation standards, which were adopted by the state board of education in 1917 and revised in 1919 and 1924, pro­ vided for the classification of high schools. The standards cov­ ered buildings and equipment, course of study, the teacher, graduation requirements, a limitation of four solids as a normal pupil load, length of school year, length of recitation, class size, and community support of the school.6 Accreditation procedures changed but little between 1915 and 1955. Standards adopted under the 1915 legislation for elementary schools were not used for accreditation purposes but to stimulate improvement by issuing certificates and door plates to schools as recognition for having met the prescribed standards. There was little variation in the program of standardizing elementary schools until about 1945 when self-evaluation activities were initiated.

New Educational Developments An innovation was added to Kansas education in 1917 with initiation of federally subsidized vocational programs. In that year the Legislature authorized schools to participate in benefits provided under the Smith-Hughes law, which had been enacted that year by the United States Congress.' As early as 19(X) a few high schools had expanded their programs to include some non- academic courses. In his report of 1902, State Superintendent Frank Nelson said: “Manual training and industrial education are coming, and coming soon.”8 This prediction began to come true just one year later when legislation was enacted authorizing first and second class cities to levy a tax of one-half mill, and other districts a tax of one mill, for industrial training schools or

30 departments. The Legislature also appropriated $10,000 to help pay the cost of such programs on a 50-50 matching basis in an amount not to exceed $250 to each participating school.9 The state raised the appropriation to $25,000 in 1911. These activities were forerunners of a marked expansion of vocational education in the 1960’s. Another advance made during this period was improvement of legislation relating to school libraries. Kansas was only fifteen years old in 1876 when the Legislature saw the wisdom of pro­ viding school libraries, and authorized school districts to levy from one-half to two mills, depending upon valuation of the dis­ trict, to he used for school library purposes. These funds were to he used exclusively for the purchase of hooks in the fields of history, biography, science, and travel.10 The district clerk was to serve as librarian unless the governing hoard appointed a compe­ tent person living in the district to perform that service. This library law was revised in 1919 by expanding authority of the district hoard to purchase library books in the fields of arithmetic, geography, history, literature, biography, travel, and science. In addition, the board could provide two monthly jour­ nals, one for primary and one for advanced grades.11 State Super­ intendent Jess W. Miley recommended further amendment of the library law, which was acted upon by the 1925 Legislature. Under that act, each school was required to expend annually at least five dollars for the purchase of library books from a list approved by the state superintendent. If more than one teacher was employed by the district, this amount was to be expended for each class room.12 This requirement has been hailed as stimulating library growth and development, but one might question the wisdom of withdrawing from school boards the authority to levy from one- half mill to two mills of tax for the support of school libraries as was provided in the 1876 legislation, and substituting the require­ ment that they expend only five dollars per teacher for that pur­ pose. The answer could he found in the thousands of one-room

schools where library0 books were virtually 0 non-existent because few school hoards had made the library tax levies between 1876, when thev were first authorized to raise such funds, and 1925 when purchase of library books became mandatory. In addition to working for the 1925 library law, Superin­

tendent Milev0 made manv0 other recommendations for school im- provement,13 among which were provision for better prepared

31 teachers, simplified tuition laws, increased support for vocational education, removal of inequities from tax laws, annuities for all teachers, legalization of junior high schools, improved qualifica­ tions and salaries for county superintendents, authority for com­ munity high schools to vote bonds for buildings, and authoriza­ tion for the state board of education to participate in the approval of school building plans. Most of these recommendations have long since found their way into law. It was during the 1915-1944 period that the first elementary school aid law was enacted. In 1937, during the administration of State Superintendent \V. T. Markham, legislation was enacted, which provided that the state pay the difference between $675 in one-teacher districts and $27 per pupil in graded elementary districts, and the amount which the district could raise by a three-

mill lew* on the assessed valuation of the district.14 Unfortun- ately, as school enrollment declined and district valuations increased, the formula under which these state funds were dis­ tributed resulted in state aid declining from $2,113,993 in 1937-38 to $1,200,681 in 1944-45. However, this first provision for state aid from non-ad valorem sources was another innovation in financing Kansas schools which finally increased the amount of state support to $86,600,000 under the school foundation finance law in the school year 1966-67. Superintendent Markham’s administration also was marked by the contribution he made to the improvement of instruction in Kansas schools. Prior to World War II most teaching was text­ book oriented because that was the traditional source of instruc­ tional material, and the supply of other sources was limited. It was, therefore, a pioneer venture when the Department of Public Instruction published the first elementary course of study that teas not based on the textbook. The new course, developed by Miss May Ilare, an elementary supervisor in the Department of Education, was published in 1934, introducing Kansas teachers to the social studies concept that presented history, civics, geog­ raphy, and some phases of science in unfamiliar patterns.15 Unfortunately, few elementary teachers were prepared, either by schooling or experience, for this approach to teaching. Moreover, instructional materials with which to carry on the new program were not available in thousands of small elementary schools. At that time most of Kansas was rural. In those areas patrons and teachers alike, who had been taught under the text­ book method, resisted the innovation and for several years "social studies” was all but a subversive term. 32 Jl• \\'. ~HLI \ , '' ho \Cn ed a-. \tat<.' \upcr­ intendcnt from 192'1 to 1927, ''a' horn m ( ra" ford Count) on December 13, 1') 78. lle attended th<• ~tat<' '-' ormal at P1thburg, taught school thirt<'l.' n yean, and held the office of count) \ Upt•rintendcnt of Crawford ( ount) from 1910 to 1922. It '" '" largely throu~h h i'> dlorh that legi,latlon to e'-­ p.md school Iibr .me' "a., enacted m 1925. J le abo '"orkcd for a teacher retirement '>}'>­ tcm, imprO\ eel qualifications for t:ounty ~ u ­ perintcndent-., '>ll pport of \OCational educa­ tiOn, and the remo' al of ta}.. incquitic'>. Mr. \Iiley died in Topeka on January 14, 1952.

Cl OHCr A ALLJ..'\, Jr was born in Holla \11\\0uri on June '30, 156 . lie rc­ u·iHd a B degru.• from Emporia ~t ate Te.H:her'> College in 19ll> l ~ t ate \Upl·rnlkndt·nt to be dt·llcd to that pO\lllon fo1 thl' fourth hme I h: fir'>t took office Ill 1!127 .md remained 111 th.1t po'>ition unit I hi-. untina h dt·ath in an .1utomobile accident on Dl•nmhlr 7, 19'32 Ill had \ened a\ a\\i'>l­ ant 'tall' '>upermtenclent four ) ears from 19 19 to 192.! under upenntc•Hknt Lorraine Ehta­ hdh \\ oo,tcr

33 W. T. \fARKHA..\ 1 ''a\ appointed \tate ~ u ­ perintcndent on De<:ember 12, 1932 to fill the vacancy occasioned by the death of George A. Allen, Jr. I Ie continued in that position until Januar), 19:19. As chief '> late '><:hool officer \larkham pro' 1ded ouhtandm~ leadersh1p, e\peciall) 111 the field of t urric­ ulum. fie graduated from Campbell College in 1915 and received an M. A. degree from the UniH'r'>ih of Kama\ in 1926. He also '>tudied at Baker l ni\l'T\Jtv, \'irgmi.1 Pol )'­ technic Imtitute, and l lan ard L ni,er\Jty frior to .lppointment to the state offke he was supt:rmtcndent of \<:hooh at 't ate\ Cen­ ter. \larkham was born in Ewing, Virgmia on O ctober 22, 1885 and died at Dodge City on Januan 18. 1946

GFORGE I \ fcCLE'\.:\Y wned tluee terms "' state \upermtendent from 1939 to 1945 Born in Jeffer\on Counh. he spent mo'>t of hi'> life m edut·ation. I lc attended Campbell College at l lolton and ~r;lduated from Baker t.: ni' ersit) lie "as counh ~uperintendent of Butler Counh before becoming state '>U­ perintendent He ''a\ a 'eteran of the · panish-Amcrl(:an \\ ar lt '' ~ durin~ his admioi tration that the 19 H teacher retire­ ment )a,, "'•" coacted. \lcClenn) died at Topeka on June i. 194i By 1950, when more teachers had the Benefit of some college preparation and the social studies approach Became better under­ stood, there was general acceptance of the new concept. Today, Superintendent Markham and Miss Hare are highly regarded for having broken with tradition by introducing methods of teaching now almost universally used. Publication of the Unit Program in Social Studies also served to introduce a five-year study and research project in which all state institutions of higher education and the State Department of Education participated.16 Results of these studies in the field of curriculum were published in a series of bulletins that cover lines of research on growth stages of children, innovating practices at the elementary level, innovat­ ing practices at the secondary level, ways and means of determin­ ing scope of the curriculum, the purposes and aims of education, present curriculum practices in Kansas, and differing philosophies of education underlying curriculum programs.17 Before the project was fully completed Mr. Markham, who stood for reelection in 1938 was defeated. The loss of his leader­ ship, widespread opposition to the social studies guides, and pres­ sures for return to textbook instruction by subjects all but shelved the studies which, with aggressive leadership, could have served as a model for curriculum improvement thirty years ago. Enactment of legislation that provided for a state teacher retirement system was another forward step taken during the middle years, 1915-1944. Passed in 1941, during the administra­ tion of State Superintendent George McClennev, the law laid foundations for a program that, by 1965, provided substantial benefits which, coupled with social securitv for which teachers became eligible in 1955, improves the lot of retired teachers and other school employees who are eligible to participate. Although the foundations for educational improvement were laid between 1915 and 1944, that period was marked by contro­ versy and other unfortunate developments. C. (). Wright, in a history of the Kansas State Teachers Association, describes at some length differences that developed between the executive secretary of the Association and two state superintendents: \V. D. Ross who served from 1912 to 1919 and his successor, Lorraine Elizabeth Wooster, who held the post from 1919 to 1923.18 Non­ professional attitudes toward state officials in both the adminis­ trative and legislative branches of government over a period of years may have contributed to delaying educational reforms that finally were achieved in the 1960’s.

35 State Superintendent Lorraine Elizabeth Wooster was the eenter of controversy during much of her administration. Conflict with the state board of education led to the courts. One of the unfortunate developments involved administration of vocational education programs, which were under jurisdiction of the state board of education. This arrangement had been approved by the Legislature as a condition to qualifying for federal benefits under the Smith-IIughes Act of 1917.1!’ Although Superintendent Wooster was ex-officio chairman of the state board, she objected to the setup and refused to sign vouchers covering expenditures from vocational funds. Mandamus action was brought against her and the Supreme Court ordered that she sign the vouchers. It seemed both legal and logical that the superintendent, as chair­ man of the board, should sign vouchers and other documents pertaining to official business. However, with removal of the state superintendent from the state board of education in 1945, it became highly inconsistent to require his signature on the docu­ ments of an agency of which he was not a member. Therefore, the Legislature relieved him of that responsibility in 1953.20 Kan­ sas’ unique position with two departments of education, one for vocational programs and one for other public school services, has been established for fifty years. These two agencies will be consolidated under the State Board of Education authorized bv the Educational Amendment approved in 1966. Another unfortunate incident of the 1915-1944 period oc­ curred in 1933 when it was discovered that the school fund com­ mission held an estimated $1,000,000 in forged bonds. The fund suffered no loss because of the forgeries, but the state treasurer was convicted because of his connection with the forgeries, and two other state officials were impeached by the Legislature. However, they were acquitted and State Superintendent George Allen, an ex-officio member of the school fund commission, was absolved of all personal responsibility.

36 chapter ii references 1. Kansas, Session Laws (1915), eh. 296. 2. Kansas, Constitution (1861 ), Art. 6, sec. 1. 3. Kansas Supreme Court, Kansas Reports, Vol. 191 (1964-65), p. 519 and Vol. 195 (1965), p. 144. 4. Kansas, Session Laws (1915), eh. 296, see. 7. 5. John L. Eberhardt, “Kansas Department of Public Instruction,” Gov­ ernmental Research Series No. 14 (Lawrence: University of Kansas Publication, 1955), pp. 140-141. 6. Jess W. Miley, Twenty-fourth Biennial Report (Topeka: State Depart­ ment of Public Instruction, 1924), pp. 54-58. 7. Kansas, Session Laws (1917), eh. 280. 8. Frank Nelson, Thirteenth Biennial Report (Topeka: State Department of Public Instruction, 1902), p. 35. 9. Kansas, Session Laws (1903), ch. 20. 10. Kansas, Session Laws (1876), ch. 122, Art. 8. t 11. Kansas, Session Laws ( 1919), ch. 261, sec. 1. 12. Kansas, Session Laws (1925), ch. 226, sec. 1. 13. Jess W. Miley, Twenty-fourth Biennial Report (Topeka: State Depart­ ment of Public Instruction, 1924), p. 9. 14. Carl B. Althaus, Quest for Quality (Topeka: State Department of Public Instruction, 1963), pp. 41-57. 15. W. T. Markham, Unit Program in Social Studies (Topeka: State De­ partment of Public Instruction, 1934). 16. Ibid., Thirtieth Biennial Report (Topeka: State Department of Public Instruction, 1935), p. 7. 17. Ibid., Study Bulletins 1-6 for the Improvement of Instruction (Topeka: Kansas State Historical Library, 1939). 18. C. O. Wright, 100 Years in Kansas Education (Topeka: Kansas State Teachers Association, 1963), pp. 98-102. 19. Kansas, Session Laws (1917), ch. 280, sec. 2. 20. Kansas, Session Laics (1953), ch. 333, sec. 1.

37 chapter iii the state department of public instruction 1945-1967

. . in one iml:wcc u hoard emplo' cd h\ o teachers to in tru1..1 thrcl pup1ls nil from the same f nul part i educational progress

There is a ver) human tendenC) for or~aniLationo;; th tt r cn•,ttt'cl for the purpo e of gaiuing tatcd ol J{{hH <, t cl.u 11 f til erl'dit ''hen those goal<; are reached. This 1 tru( f th~ I I tmion "hen the lot of its con tituenc\ i~ impr ' d f th~ d tional aso.;ociatiou \\hen teacher · salari( ar r 1 d a I tiona I st.mdarch upg1 aded and of th( chaml f "lwn economic gains are made in the ( n n tmt \\ h I antl other org,mization'! contribute to r achmg th progrt•ss i-. the re .... ult of man) force \\ )rking nf time. There are mmn il1ustrati ns f tl · education. · State Superintendent \V. I). Koss, 1912-1919, recommended a state teacher retirement program twenty-five years before it was provided in 1941; the first school district consolidation laws were enacted at the turn of the century, but it was more than sixty years later that the horse-and-buggy type of district was discarded for a more efficient structure; and state superintendents sug­ gested that their offices be filled by appointment rather than by election almost one hundred years before that goal was attained. The list of analogies is well-nigh endless. Therefore, it ill behooves any organization or individual to claim omnipotence in bringing about the revolutionary changes in education that occurred after 1945, because foundations for such progress had been laid by foresighted leaders during the preceding eightv-five year period. Also, important groundwork in the form of state-financed studies helped develop a climate for educational progress. One was the work of the Joint School Code Commission of 1921-1922, which suggested most of the im­ provements that a second study group, the School Code Commis­ sion of 1927-1928, recommended.1 The reports of these commis­ sions called attention to the need for educational reform. School officials were deeply disappointed because neither of these studies resulted immediately in corrective legislation, but in retrospect, the contribution of this work to later improvement becomes apparent. Perhaps the most significant stimulus that led to long-sought legislation for educational improvement was a comprehensive educational survey, which was authorized in 1957 by the Legis­ lature, and financed by appropriations totaling $150,000. The survey, which covered education from kindergarten through the universitv, was conducted bv Dr. Otto Domian and Dr. Robert J. Keller, faculty members of the University of Minnesota. Dr. Domian headed the elementarv and secondarv studies, assisted by Mr. Ceorge Frey, who had served fourteen years as director of information in the state deparement of public instruction. Dr. Keller directed the higher education study. Featuring the survey was a state advisory committee, composed of prominent persons, which enlisted the cooperation of citizens in making results of the survey fruitful. Comparable committees in most of the state’s 105 counties assisted in the project. The five-volume survey report was published in May, I960.2 Five years later, legislation covering major recommendations per­ taining to elementary and secondary education and junior colleges

39 had been enacted Prior to 1945, most statutory revision affecting education had been of an evolutionary or patchwork nature, with no major overhaul of the state’s public school system initiated

after the foundations had been laid earlv« in the state’s historv.* Many state superintendents had called attention to the need for extensive changes, and numerous surveys and studies had pointed out deficiencies, but it was not until 1945 that the Legislature initiated action to modernize the Kansas school system. Laws enacted between that date and 1965 culminated in a restructuring of the state’s educational system. Advances made during that period include: Creation in 1945 of the State Department of Public Instruction with a lay state hoard of education replacing a professional hoard, and adop­ tion of statutory guidelines for division ol responsibility between the board and the state superintendent.3 Establishment and expansion of school lunch and milk programs.' Attainment of the degree standard for all teachers and certification authority limited to the State Department of Public Instruction.5 Establishment and expansion of special education opportunities for non-typical children, with provision for liberal state support.6 Elimination of uniform statewide textbook adoptions and the state printing of textbooks.” Legislative authorization for the establishment of a system of area vocational-technical schools, and the expansion of other vocational education programs.8 Establishment of a state scholarship program.9 Establishment of a state system of junior colleges, with provision for some state support.10 School district reorganization that reduced the number of districts from 8,112 in 1945 to 339 in 1967. Of equal importance was the elim­ ination of a hodgepodge of districts set up in double deck fashion, and the establishment of unified districts to provide instruction from kindergarten or grade one through grade twelve.11 Transition from local support of education by means of the property tax to a foundation finance program to provide approximately -352 of school operational costs by the state from non-ad valorem sources.12 Adoption of a constitutional amendment providing for an elective State Board of Education with jurisdiction over elementary, secondary, and vocational education; and junior colleges. The board to appoint a State Commissioner of Education as its administrative officer.13 These programs and activities are discussed at greater length in Parts I, II, III, and IV of this chapter.

40 I.A\ LR'\ \\ BROOK , "ho ''n" horn in Bloommgton, \\ i't'Oil\111, 1111 '\tncmber 27 1 '>75, had a dl\­ tlngul'hcd e.ln't'r m cducat1on lie

'' ·" a gradu.ltt of I chool in the ot' tt that tntw, and later \Crved Ill tht• 'anw t·ap.tt ih .tt F..l\t ·md '\mth high ,t·houJ, ''hen thq "ere o(H'Ill'd. \\hen a d1rector,h1p of 't·t·mHian cdutatwn w

't'.tr' and for a timt: \Cf\ <:d '" \U­ rwrintulCient of tht \\ tchita "'tt·m Dr Brook' \\a' 'tat< \ U(>enntcnclent lor 1\\0 tt•rm' from 1945 to I H49, but cltd not 'eek ,, tlurcl tt•rm A gn•at deal of \lgntricant legl\lat1on wa' t'll, <~nd the \tate dcpart­ lltt•nt of puhlit 111\lruetwn ""' gi\ en \olt• authoril) to tertif~ teacher' After lea' mg till' 'II(H:rmtt'IHit·m \ Dr Brook' actcptt•d .1 po\llton in the OepartnH'nt "' h~'\ tbook .11 1 1-t "hidt ht• held unit I ·\u ~u ' t 1951. IIi' death lltl urred in Burb.mk. Cat.forma 011 '\II\ l'lllhl·r :2 1, 1!)5:J,

41 The State Board of Education As education developed in Kansas, the membership and func­ tions of the state board of education also changed. These changes from the first authorized board in 1873 to the present program which was adopted in 1945 can best be shown by the following table.

Personnel, Dates Authorized, and Principal Duties

A u th o ri zed Per so n ri el Principal Duties 1873—State Superintendent, Chancellor State Issue state diplomas and state certifi­ University, President Agricultural Col­ cates of two grades upon examination lege, President Emporia Normal School, President Leavenworth Normal School 1893— Same as in 1873 Same as in 1873 and examine work of colleges and accept college credits in lieu of examination for teacher cer­ tificates 1915— State Superintendent became ex-officio Same as in 1893 and prescribe courses chairman of State Board and some lay of study, employ a professional secre­ representation added tary to inspect colleges and administer teacher certification 1919— Lay representation eliminated from the Same as in 1915 and serve as Board State Board for Vocational Education

1933—State Superintendent ex-officio chair­ Same as in 1919. After 1937 served man, one representative from each of as textlx>ok adoption agency five institutions of higher education, one member from faculty of private college, one county superintendent, one high school principal, two citizens in farming or business

1945— Seven lay members, one from each Con­ Approve or disapprove policies of gressional District, others at large State Superintendent, adopt textbooks until 1957, serve as Board for Voca­ tional Education

All Board members except those holding ex-officio positions appointed by the Governor

42 Kansas is presently served by a State Board o£ Education composed of seven members appointed by the Governor. Chainnan of the board (right) is Donald E. Bonjour, Republican from Shawnee Mission. Other members are (lop row) Mrs. Ailene Beal, Republican from Clay Center; John Berns, Democrat from Peabody; Robert Donelan, Democrat from Colby; (bottom row) Otto A. Epp, Republican from Tribune. Mrs. Maxine Scoville, Democrat from Kansas City; and Floyd Souders, Republican from Cheney. This group will be re­ placed by a ten-member elected board when the con)titutionaJ amendment becomes effective in 1969.

43 A New State Agency for Education Problems arising within the State Department of Education, which had been organized in 1915, highlighted the need for again restructuring the state agency for education. To that end, the 1945 Legislature created the State Department of Public Instruc­ tion.14 This act defined the Department as consisting of the State Superintendent of Public Instruction and the State Board of Edu­ cation. The board, which for the most part had been composed of professional educators, was replaced with a lay board of educa­ tion. Administrative responsibilities and policy making powers, subject to approval of the state board, were delegated to the state superintendent. In effect, the board became an advisory body rather than a policy making agency in most of its functions. This legislative action was a move in the direction of recognizing the constitutional status of the state superintendent. However, that was not the dominant reason for changing the legal patterns adopted in 1915. Establishment of the Department of Public Instruction fol­ lowed the administration of State Superintendent \V. T. Markham, 1932-1939, who had provided outstanding leadership in the office, and who was held in high esteem by school officials. Markham, a Democrat, was swept out of office in the 1938 election on the tides of political change. Because of his defeat, friction devel­ oped between political leaders and educators, who had strong representation on the professional state board of education. This in turn led to differences between the state board and Superin­ tendent George L. McClenny, who succeeded Mr. Markham. The ensuing unrest seriously affected leadership functions of the Department.15 Another reason for legislative action was general recognition of the Department’s weakness because of inadequate financial support, a poor image, and the lack of clear-cut lines of demarca­ tion between functions of the state board and the state superin­ tendent. Not only was the Department staff limited in numbers, but it was handicappel by an annual budget of less than $40,(XX) plus a minimal sum collected from teacher certificate fees. In moving from a professional to a lay state board of educa­ tion, the Legislature prescribed limitations in the appointment of members by the governor.0 The act also set up qualifications that must be met by candidates for the office of state superin- °See page 111 in Appendix for qualifications of state board members.

44 ADI:.L F. 1 llROC h.\lORTO "as fir,t electl"d state '>uperintendent in '\oHmber, 194b, and held the pO\IliOn unlll hi\ re~ignatioo on Au~mt 31, 1966. lit'> pre' ious e'­ perience included teaching 111 rural OJll·-room \chooh, a high \chool principalslup, sen 1ce as a ~uper­ int<.·ndent of school\, and county \Upcriotendcnt of edgw1cl.. Count) from 1939 to 1949. He abo en­ gaged in c'temion and \ummer )Chool teaching at Wich1ta Uni­ Hr\ity. fhroe; kmorton graduated from \ luh aoe IHgh school, recci' ed an A B degree from Southwestern College and a ~ I a\lcr\ degree from tlw Lnhc1\ 1 !~ of h. amas. lie ,.,. a, a''arded t\\0 honorary degrees, an Ll. D. degree from ·outh" estern \Stern of junwr college\ wa\ e\tabli,hcd; a \chool foundatiOn hnancc pro~arn, ''h1th mcrea,ed stat<.· \upport of schooh, ''a\ adopted; a \) \lem of area \.O<.at10nal \<.hooJ., wa\ fom1ed ; and an educational amendment adopted th.1t pro'" ide~ for an elected state board of educatiOn and an appomted \late commi)­ ,icmcr of cdu<.ation In addition to h1s "ork m education, Throckmorton cd•ted and publl'>hed a country nl''' 'paper four and one-lulf Har\ and sen eel durmg \\'orld War I m the 35th o .... tiion (rum the tune 11 ''a' orgam.red m 1917 unhl \ Ia} , 1919

45 tendent.06 Prior to this action, anv candidate for the office who received a plurality of votes cast for that official in a general elec­ tion became eligible to serve if he met residence requirements applicable to all elected state officials. With the vote at his com­ mand, the candidate so elected could have served even if he were illiterate. Although the 1945 legislation provided a legal framework for cooperative action between the state board of education and the state superintendent, the transition from a predominantly pro­ fessional to a lay board, and removal of the superintendent from membership and ex-officio chairmanship of that body created un­ foreseen problems. The lay board was left without legally desig­ nated professional leadership in two important functions outside the Department. One of these pertained to the adoption and state printing of textbooks. Those duties, which had been trans­ ferred from the School Book Commission to the professional state board of education in 1937, remained under the newly formed lay board and outside the jurisdiction of the state superintendent. Thus that official, who was charged with developing courses of study and supervising instructional programs in the public schools, had no voice in the selection of a major tool with which these activities were carried on. A second function of the lay board with which the state super­ intendent has no official connection is the administration of voca­ tional programs in secondary schools, junior colleges, and area vocational schools. In its capacity as a State Board for Vocational Education, the State Board of Education is an agency separate and apart from the Department of Public Instruction, administers vocational programs under its own budget, and appoints its ad­ ministrative officer and his staff. In effect, Kansas has two state departments of education. When the Legislature formed the State Department of Public Instruction it corrected a deficiency that had existed in the state agency for education since the first state board of education was organized in 1873. The new legislation clarified the relationship between the state superintendent and the state board of educa­ tion. Although the state board was not authorized by law to initiate policy, the practice has been for the board and the state superintendent to cooperate in formulating policy, subject to that body’s approval. °°See page 111 in Appendix for qualifications of state superintendents.

46 Improved Department Status ince reorganin1lion in 1H45, there has been a growing de­ mand for more sen ICC<; from the Department of P uhhc Instruction h: school aclmini\tratms. ]a, mganiza.t10ns interested in educa­ tion, and special interest groups such as those connected with adult education, clri' ('r educatiOn, and the 'ltate \Cholarsh ip pro­ gram. Fcclerall: financed eclucatwnal a<.:ll\ ities aho h ave led to more requc'lh for Dcp.utment scn'1ces.

The pruf<.'\\ional q,t!T of the I9n tate upcnntt ndent of Pub lic: l mtrurtwn m­ t:luded (b,l<. k rem Ra' mond I Cu\ter llu!h chod Supen J\Or, l nula H en l e~, C'ur­ rkulum D1re<.tor; C C \ lll\011, tati\lltl.lll " " \\ n~ht. Director of c:hool l unth, Carroll l\ot'l, I lemenlOr L aH rn " Brook' C., tate 'lupt•nntendcnt, " \ State) , A..., i,t,mt C., tate upl'rmll'nd<.·nt, \l ,1r~ \lac Paul llement,1r~ Supen·i,or, .111d George I re\, D•rcctor o£ Information

An apparent grm" th of confidence in the D epartment of P ub­ lic l n<,tmctton b\ legislators, state and local agenctcs, and ccluc,l­ tional leaders ha\ l<·d to mcrc,lsccl dem.md for 'ICI' Kes from that agency which, from carhest d,n s of st,ltehood, h,1cl been t•tther ignored m considered to be a necessar; C\ il b; the public at hu ge. Perhaps th<' first ..,putlllk and the fright it g,ne \H'IC contributtng factors to imprm ed attitude.., toward tlw <;tate agellcy for educa- 47 tion. Most assuredly, a series of Supreme Court decisions firmly established the fact that the state superintendent is a constitu­ tional officer to whom the Legislature can delegate almost un­ limited powers in the field of education. Another indication of increased confidence was the power delegated to the state super­ intendent in administering the 1963 and 1965 school district uni­ fication laws after having bypassed him in the 1945 and 1961 acts, both of which were held by the Supreme Court to be unconstitu­ tional.10 One factor contributing to improved status of the Department after 1945 was the continuity of policies and procedures followed by the three state superintendents who served from that year until 1967. L. \V. Brooks, who took office at the beginning of the period in 1945, was followed by Adel F. Throckmorton who served until August 31, 1966. His successor was \V. C. Kampschroeder, who was appointed to fill the unexpired term and then elected in November, 1966, to serve until January, 1969, at which time a state commissioner of education is to be appointed under the Edu­ cational Amendment to the Constitution approved in 1966. In each transition from one administration to the next during this period, members of the Department staff carried over, and each of the three superintendents worked for the same objectives, changing policies and procedures only as educational develop­ ments warranted. The lengthened tenure of both professional and clerical mem­ bers of the state superintendent’s staff during the latter years also added to Department effectiveness and efficiencv. Prior to 1945, the longest term served by any state superintendent had been six years and two months, with an average tenure of 3.7 years for all superintendents up to that time. The tenure of staff members was no better. This is evidenced by the following table, which shows the number of staff members with five or more years of experience in the Department at five-vear intervals from 1910 to 1945.17 Staff members icith End of five-year five or more years tenure period Professional Clerical 1915 1 1 1920 0 1 1925 1 1 1930 1 1 1935 1 0 1940 1 0 1945 2 0

48 o institution or organi/ation has established programs for the preparatiOn of Department of Pubhc Instruction per\onnel to handle the unique duties required of them. Therefore, train ing fm that sen tcc can he ohlaiHcd o nl ~ in a state ed ucation agenc:. Chief \ late school ofR cers and thetr sta fl leadership arc in general agreement that from one to t" o ) ears of e'perienee on the JOb is needed to adquateh prepare a staff member for most of the re­ sponsihilitlc·s he " ill face. Thus. during most of the state's his tor:, capable an d conscientious state superint endents hm;e been lullldi­ capped dlll ing the ea rl y ttears of their administrations for tcallf of personnel adequately prepared for tl1eir tasks. In contrast to cond iltons d un n~ the fiJ st eight: -fkc :ears of the Department\ acti vi ti es, there were on the state superin tencl­ cllt's st.1ff 111 1961 110 less than cle\ en profcss10nal and clerical members \\ ith fifteen or more \ ear'> of sen ice in the agency. In addition, mne cmplo: ee'> h.l\ t' se1\eel f1 om ten to fom teen ye.us, aud th irt~ h

\ h mbu' uf thl• 'tall Ill 19(;7 "lw ha' l 'en cd fiftn n or mort 't:ar' Ill till Dr­ PIIllmcnt of l'uhli<: lmtru('ll()n art• h tancling), \(aunte Cook, \ ('(rCdtt.ltion ( omult,lllt, }atlll'' ~ f ur,h.11l Dirl'ltor of ..,pcu.1l L clm·ation Huh' Schol.l' Dinttor of dwol L unch, Ct· ur~t· ( It·land, 0 1rt·< tor of the D l\ i~iun of Jn,trudmn.tl ">t·n Kl'' } and I h ntht·r, ">d•ool l.um·h Cnn,ult.lltl; 1'. I loHI llcrr D trct·tur of the 0 1\ '"on of Aun•cht;1t10n and Tcad1er Cntific .ttion; ('l',ltl d C. lath' hkl D lrt:ltur of ·1 t:adtl r Cl·rltfH:atwn, 1 .1\ h. lmp­ 'throedu D irutor ul l •n.llltc, \ \ C h. amp,fhrol'tnnltntknt Jumll (,IIJc,ptt. ( ll'rk III

49 Employees with ten to fourteen years of service in Depart­ ment by December 31,1967: Phyllis Bowers Eileen Heinen Lawrence Simpson Jean Brewer George Reida Marguerite Thorsell Lois CafFyn C. C. Rice Edna B. Umholtz Employees with five to nine years of service in Department

bv*• December 31,1967:f Carl Althaus William Goodwin C. W. Rice Florence Applegate Carl Haney Clara Robertson Dorothy Barber Freda Harrington Lawrence Sayler Lewis H. Caldwell Murle Havden Jay J. Scott Wilma Cranwell Carl Heinrich Mildred Swan Della Daughtery Julia Jameson Ruth Teel lone Durham Dorothy Lanter Marie Tietgen Kenneth Eckdahl Donna Long John Vigneron Phyllis Faulk Marjorie Miller Charles Watkins Willard Foster Oris Reedy Helen Whitla Thus, in 1967 about one-third of the state superintendent’s staff has been employed there for five or more years, with no men­ tion made of those who have served from one to four years. Under these conditions prospective staff members may look forward with some assurance to a career in the Kansas State Department of Public Instruction. As the transition is made from an elected state superintendent to an appointive commissioner of education and an elected state hoard of education, further improvements of this nature should develop. The strength added to the Kansas State Department of Public Instruction during the 1945-1967 period through the long tenure and faithful service of the professional, secretarial, stenographic, and clerical personnel can best be reflected through a brief sketch of the contributions made by those who have served fifteen years or more.

George L. Cleland, Director of the Division of Instructional Services, joined the Department of Public Instruction in 1952. His background of experience includes teaching in rural one-room schools, coaching and teaching in high schools, and serving as principal of the Atchison high school for eighteen years—the posi­ tion he held when he became a member of the Department. In 1957 he was named president of the National Association of Secon­ dary' School Principals, after having served on the executive com­ mittee of that organization. Earlier, he had served as president of the Kansas Association of High School Principals. More recently he was appointed to serve as a member of the National Committee on Secondary Education.

50 Dr. Cleland received his A. B. degree from , a Masters degree from Columbia University, and the Ed. D. degree from the University of Kansas in 1958. In 1959, Baker University conferred upon him the honorary degree, Doctor of Pedagogy.

Maurice E. Cook has given seventeen years of service to the Department of Public Instruction, and is presently a consultant in the elementary and secondary school accreditation section. He was the principal of an elementary school in Ottawa prior to ac­ cepting a position on the Department staff in 1950. Mr. Cook’s early teaching was in the rural schools of Douglas County, and he later held elementary principalships in Johnson and Sedgwick Counties. He attended Baker University two years before trans­ ferring to the State College at Pittsburg where he received an A. B. degree. He holds a Master’s degree from the University of Missouri at Kansas City.

Jennie Moore Gillespie began working for the Department in 1951. Most of her service has been in the finance division where it has been her responsibility to calculate the amount of state funds to be distributed to school districts, a task that requires accuracy and careful attention to details. Mrs. Gillespie attended elementary school in Shawnee County and graduated from the Auburn high school.

F. Floyd Herr has the longest tenure of anyone on the Depart­ ment staff, having been appointed professional secretary to the state board of education in 1943, two years before the State De­ partment of Public Instruction was organized. He was named Director of Teacher Certification and College Accreditation in 1945. Other responsibilities have been added to the division in recent years. Prior to joining the staff, he taught in high schools, served as high school principal, and as superintendent of schools at Medi­ cine Lodge. Dr. Herr received recognition as president of the National Association of State Directors of Teacher Education and Certifica­ tion, membership on the National Study Commission of the Chief State School Officers, and an organizing member of the National Council for Accreditation of Teacher Education. He also served as president of the Central States Departments of Public Instruc­ tion. Dr. Herr obtained his B. S. degree from Kansas State Uni­ versity, a Master’s degree from Columbia University, and has taken graduate work at Denver University, State University, and . He was awarded an honorary doc­ torate by Ottawa University in 1951.

Janet Denton Hinther is rounding out twenty years of service in the Department, having joined the staff in 1947. Her previous experience included ten years with the United States Department of Agriculture, Farmers Home Administration, and several years as

51 a home economics teacher. As school lunch supervisor, she reviews from 250 to 400 school lunch programs annually, organizes voca­ tional classes for school lunchroom personnel, plans and participates in workshops, and assists related groups and organizations. Mrs. Hinther graduated from Valley Center high school, re­ ceived an A. B. from Friends University and has taken work at Colorado State University. She also held a dietetic internship at University Hospital in Oklahoma City.

Gladys Fay Iske, Director of Teacher Certification, became a member of the Department in 1951. Her work deals with the complexities of teacher certification, and, as director she is respon­ sible for processing applications of prospective teachers for certifi­ cation, interpreting regulations and laws governing that activity, and handling the mass of correspondence occasioned by issuing more than 10,()()() certificates annually. Miss Iske graduated from King City high school in Missouri; attended Kansas City Business College; graduated from the Kansas City, Kansas junior college; received a B. S. degree in business from the University of Kansas, and a Master’s degree in education from that same institution in 1958.

Fay Young Kampschroeder, Director of Finance, holds one of the more responsible positions in the Department of Public Instruc­ tion, which she joined in 1949 as a school lunch auditor before pro­ motion to the position she has held since 1950. Previous experience included work for the Kansas Electric Power Company of Law­ rence, a year with the Kansas Emergency Belief Committee, and eighteen years on the staff of the League of Kansas Municipalities where she engaged in statistical work and writing for that organi­ zation’s official publication, the Kansas Government Journal. She became associate editor of that publication. Mrs. Kampschroeder’s responsibilities, which are many and varied, include distribution of state aids to public schools and other educational institutions (other than the foundation fund), purchas­ ing, payroll, auditing, internal accounting, inventories, bond clerk for the school fund commission, maintenance of mailing lists, processing of incoming and outgoing mail, preparation of the Department’s annual budget, and compiling the state educational directory. She attended elementary school in Douglas County, graduated from the Lawrence high school, and attended the Lawrence Business College.

\V. C. Kampschroeder, who has been State Superintendent since September 1, 1966, joined the staff in 1951 and, until his ap­ pointment as superintendent, served most of that period as Director of Administrative Services or Assistant Superintendent. A detailed account of his activities since coming to the Department is given on page 55. James E. Marshall joined the staff in 1952 as a consultant in special education, and became director of those programs in 1958. lie has gained state and national recognition as a leader in his field. Earlier experience included three years in the Air Force during World War II, superintendent at St. Francis Boys Home, and psy­ chologist at the Larned State Hospital. He has served as consultant to the Division of Handicapped in the United States Office of Edu­ cation, and as a member of the Governor’s Advisory Commission on Institutional Management. He also holds positions of responsibility and leadership in his church. Marshall graduated from Reading high school, received an A. B. degree from the University of Kansas, an M. S. degree from Fort Hays State College, and the Ed. D. de­ gree from the University of Kansas in 1967.

Ruby Scholz, Director of School Lunch, has been on the staff since 1947. Prior experience included several years of teaching home economics in Kansas high schools, and six years as specialist in food conservation and marketing at State College, Agriculture Extension Service, Raleigh, North Carolina. As direc­ tor of the school lunch section, she coordinates the work of three consultants, conducts workshops and in-service programs, carries responsibility for approval of applications and agreements of more than 450 school districts and single unit schools, in addition to processing claims under the school lunch, special milk, and special assistance programs. Miss Scholz took her high school work at Frankfort, received a B. S. degree from Kansas State University, and a Master’s degree in home economics education from the University of .

Margaret Rion Van Horn has completed twenty years of ser­ vice in the State Department of Public Instruction, the last seven of which have been as secretary to the state superintendent. Since joining the staff she has been secretary to two high school super­ visors, the assistant state superintendent, and in the special educa­ tion section, all of which qualifies her for the many and varied tasks of the number one secretary in the Department. In addition to stenographic and typing work, Mrs. Van Horn must be familiar with activities and developments throughout the Department, serve as receptionist, answer questions arising from other staff members and from the public in general. During the year 1966-67, Mrs. Van Horn was president of the Kansas Association of Educational Sec­ retaries and provided leadership for that group.

The continuity of operation was further strengthened by the close working relationship between Superintendent Throckmorton and Mr. Kampschroeder while he served as assistant state super­ intendent. In that position he participated in important decision making, developed in-service programs for the staff, worked with school administrators, counseled with boards of education, and in

53 other ways established rapport with school officials, legislators, and the agencies with which the Department works. One of the tangible results of Kampschroeder’s work as assist­ ant state superintendent was the move of the Department to new quarters in October, 1966, soon after he was appointed state super­ intendent. The building to which the Department moved had served for years to house an automobile agency. In arranging for the lease and remodeling job over a period of several months, he carried the many responsibilities involved in the planning with architects, supervising the remodeling program, working with the Department of Administration, and handling the myriad of details connected with the project. The building, which was remodeled at an estimated cost of $300,000, is of sturdy construction, and provides adequate hous­ ing for the Department in two full stories and a third floor con­ ference room—a total of 32,000 square feet of floor space. With new temperature control systems, modern lighting, and resurfaced walls inside and out, the new tailor-made quarters enable the De­ partment to provide more services than from the five buildings in which the staff had been housed. The 1966 move placed the agency under one roof for the first time since 1951, and marked another advance in the Department’s effectiveness. The new quarters are located two blocks east of the Statehouse grounds. These many activities and the insights gained during sixteen years of service in the Department of Public Instruction eminently qualified W. C. Kampschroeder for the office of state superin­ tendent, and, at the same time, provided one more link in the continuity of the agency’s service since 1945. Upon taking office as the last elected chief state school officer, Kampschroeder an­ nounced his goals, which should assure a smooth transition in 1969 to the new agency for education authorized by the Educa­ tional Amendment. I le proposed to “Continue to strengthen the State Department of Public Instruction as a means of improving services to local school officials and local school districts. “Assemble educational data and information through research tech­ niques and acquaint citizens of the state with the findings. “Establish a school administrative advisory group to the state superin­ tendent, the group to consist of approximately fifteen members who would be a cross section of the school administration interests of the state. “Make provision for regional workshops for all chief school adminis­ trators, to be held during the month of June. \\ ( kA \I P~CHROEDER, "ho '"as appomtcd '>late \uperintendent on September 1, 19()(), and elected to the po'>ition in No' ember of tJ1e '>am(; ~car, JOmed the Department ,taff in 1951 One of hi' fir'> t as­ '>ignment'> w~ to conduct a ~tate­ wide \Chool building survey nnd tramportat10n \IUd) Other respon­ 'ibilitH:''> (·arried before his ap­ pointment a!> '> Uperintendcnt in­ rludtd admini,tration of Public La"" 815 and 8i-1 , under ""hich ft:dcral funds are distributed to fcder ,11ly imptud) of 1\.ama'> school law, de" elopmcnt of tht Dcpartmt·nt budget cooper­ ation "" ith the four di" isions of the ~tate Dcpartmt:nt of Admini\tra­ tion bud~t·t , purch.l'>ing, pcr'>on­ nd, and accounts and reports, ~cncral managc•mcnt and ~uper­ ' i\ion of the thre(; dn 1\JOm and fiftec·n se(·tiom of the Department of Pubhc lmtruc:tion direction of the ck,clopmcnt and admini\tration of a sy!> tem of public \chool financ:e; organi.ration of lll·'>Cn •c·c a ttl\ IlK'> of the 'ta££, and e'>tabh,hment of "orking relatiom "ith lcgl'­ lator' othc·r ~tate oHit:ials and numNou'> unofficial agencu~~ and organi7atiom conc:t'rncd '' ith cduc: ational impro' cment k amp'>chroeder came to the Department from the superintendenc) ,It Eureka. lie graduated from La,, renee high \chool, recehed A B. and \laster ' de~rec' from the t niHnit) of "-•m~a' and took add1tional work at Columbu1 Un•,er\Jiv and the UniH:nil> of kama' lie '"a' a teacher and l11gh \t:hool prmt:1pal be£ore he '>pent four­ teen ) car'> '" \upenntendt•nt of schooh at Eureka. A~ \late \Uperintendent, k amp\chroedcr ha'> the ht>a"' re~pom•b•lit) of or~anu ing the "ork of a n·c·enth e"pand<·cl ~taH admmi\termg a great deal of ne" legl\lation that require' cxtemiH acl,mtmt>nl m mo't area~ of the \tatt. and mal..mg preparanon (or tramition to a fll•\\ 1\ pc of edu<:ation agenc\ \\ ith an elected \late board of t•duca­ tion and :m appomted conHTII\\JOncr of educatiOn a' pro' 1ded 10 the edu<:atiOnal

55 “Work closely and cooperatively with the governor and other officers of the executive department of state government, with the Kansas Leg­ islature and its appropriate committees, with the Legislative Council, and with the Research Department. “Bring into being a group of leaders interested in organizing to im­ prove Kansas education; their concerns to include pre-school age chil­ dren as well as those from kindergarten through grade twelve, and the community junior college programs for grades thirteen and fourteen.”1*

The State Department of Administration Cordial relations with the State Department of Administra­ tion and other state agencies through which the Department of Public Instruction operate have contributed to the advancement of educational interests throughout the state. Kampschroeder successfully provided most of the liaison between the two agen­ cies during the years he was assistant state superintendent. The Department of Administration, which is an agency of state gov­ ernment closely allied with the administrative and legislative branches, was established by legislative action in 1953. It in­ cludes the Finance Council; which consists of the Governor, Lieu­ tenant-Governor, Speaker of the House, Speaker pro-tem of the Senate, and chairmen of the ways and means committees of the House and Senate. Other elements in the Department of Admin­ istration include an executive director, a budget division, an ac­ counts and reports division, a purchasing division, a personnel division, the State Architect, and other employees. The Depart­ ment of Public Instruction is subject to the same restrictions and controls imposed by this body as are other state agencies. The state superintendent s clerical and secretarial appoint­ ments are made from lists of qualified persons provided by the personnel division, and professional staff members must qualify under standards set by that division. His annual budget is sub­ mitted to the budget division for review by that office before it is presented to the Legislature, and all purchases of equipment for the superintendent’s office, in excess of $50, are made through the purchasing division of the Department of Administration. Sup­ plies and materials are generally purchased under provisions of open end contract arrangements made by the purchasing division. New positions can be established by the state superintendent only on approval of the Finance Council or the Legislature. Thus, the Department of Public Instruction is not an autonomous agency but, aside from the time consumed in working through the De­ partment of Administration, the system has proved to be quite

56 satisfactory. In fact, personnel in the budget division have been helpful in testifying before legislative committees relative to fi­ nancial needs of the superintendent’s office, and there are more advantages than disadvantages in the civil service system, which simplifies the process of selecting competent clerical, secretarial, and professional employees. Working with the Department of Administration has become increasingly helpful as that agency became familiar with problems peculiar to the Department of Public Instruction.

The State Superintendent in 1967 The state superintendent, who is administrative head of the Department of Public Instruction, is the chief school officer of the state. His powers are granted by the Legislature under authority of the State Constitution. Traditionally, the office in Kansas has been regarded as a minor one, and is so labeled in spite of the heavy responsibilities assigned to it in recent years. Aside from his duties as a member of the Department of Public Instruction, the state superintendent has sole responsibility in many areas. lie is the state authority for junior colleges; enters into agreements with federal agencies in the administration of several federally financed programs; presents the Department budget to the Governor and the Legislature for approval; makes final decisions on many issues respecting school district organiza­ tion and boundary changes; appoints staff personnel; addresses numerous educational conferences; keeps in close touch with the institutions of higher education; and holds many interviews and informal discussions with persons and groups who come to his office. The Legislature looks to the state superintendent for recom­ mendations regarding laws needed to improve the state’s educa­ tional program. He is subject to a thousand pressures as he backs up staff members, who administer teacher certification, accredita­ tion activities, school district problems, the distribution of state funds to schools, and other departmental programs. The state superintendent is by law an ex-officio member of several other state agencies, a brief review of which follows: He is ex-officio chairman of the State Teacher Retirement Board, which was created to administer the teacher retirement system established in 1941. That board appoints an executive secretary and employs a staff to administer details of the program. The retirement board meets monthly, develops policy under which the program operates, rules on procedural

57 matters about which the executive secretary is in doubt, and invests the funds contributed by teachers and other members of the system. Until 1965 all funds by law were invested in securities of the Federal govern­ ment, but 1965 legislation authorizes the retirement board to invest in assets eligible for the investment of funds of legal reserve life insurance com­ panies in the state of Kansas, with some minor exceptions.The 1965 legislation also requires the retirement board to retain qualified investment counsel. Although the retirement system is administered by the executive secretary, serving as chairman of the retirement board is one more time- consuming task for the state superintendent. The same may be said of the state superintendent’s responsibility as chairman of the state authority for Schilling Technical Institute at Salina. Chairmanship of the budget review committee, which rules on budget limits for school districts, requires much of the state superintendent’s time. He also serves as secretary of the School Fund Commission. The work of that commission is not so heavy as in times past, as all school lands have been sold. In recent years most of the permanent school fund has been invested in federal securities, which produce more revenue than municipal bonds, in which the fund was invested prior to the late 1950’s. The state superintendent also cooperates with a number of unofficial agencies that work for educational improvement. He is an ex-officio mem­ ber of the Board of Directors of the Kansas State Teachers Association, and serves on a number of that organization’s committees. He is also an active member of the Kansas Association of School Administrators, and works closely with officials of the State Association of Boards of Education, the Kansas State High School Activities Association, and the Kansas Congress of Parents and Teachers. Another responsibility, which recently has been added to the state superintendent’s long list of activities, is membership on the board of di­ rectors of the Mid-Continent Regional Educational Laboratory. This is one of a network of such laboratories financed under Title IV of Public Law 89-10, the Elementary and Secondary Education Act of 1965. Planning and developing the laboratory over a period of one and one-half years was a time-consuming task for the board of directors. Headquarters of the laboratory are in Kansas City, with four service centers located in Wichita, Pittsburg, Manhattan, and Lawrence. The state superintendent is also responsible for the internal organiza­ tion of the Department of Public Instruction, and, in the final analysis, is responsible for decisions and programs developed by his staff. He, more than any other member or group on the staff, builds the image of the De­ partment and determines whether its public relations program is good or bad. Also, there are some functions of the Department that are not assigned to the divisions and sections, but remain under the direct supervision of the superintendent and his assistant. Reporting directly to the state superintendent and his assistant is the coordinator of federal programs, whose title indicates the nature of his duties. With federal programs administered in most segments of the De­ partment, the coordinator serves as a clearing point, and keeps informed about educational developments at the federal level. Other staff members

58 currently ( 1967 ) working outside the three divisions of the D epartment are a personnel director, a director of fl c;cal management, a director of the Iowa ProJect, which 1s dtscussed later in thts chapter, and a dtrcctor of tn formatl()n who edits Kansas Schools. the offi cial publicalton of the De­ partment, edits teachers' guides p repared by other sta ff members. write<; news releases to keep the public informed about educational acti viltcs, and asststs m familiar171ng the staff members with developments m the De­ partment.

The E ducational Secretary

Margaret Van Horn, who h a!> ~ erved se' en years as the State uperintend­ ent\ \ecretary, holds the highe!> t civil service rating among D epartment of Public Jmtruction secretaries. She has completed twenty years of ser\'ice in t11e Department, " as president of the Kam a<, Association of Educational Sec­ ret a ric ~ in 1966-67, and has provided leader,hip in the national or ~anization of educational secretaries.

After 1945, the role of the educational secretary became in­ cteasingl) important as school enrollments e.:-..panded , larger school units were developed, new slate and federal programs were uld imp1 O\ e instruction and trengthen school administra­ lwn. To that end, the slate superintendent and his staff gave en­ couragement and help ''hen school secrctarie decided to or­ ganite, and hrvcs as a work­ shop in which members receive inspiration and seek to upgrade themselves. The As ociation and man ~ educators fa\ or develop­ ment of a program for the certification of educatwnal secretaries whose work is of such a specialized nature.

Carl B Altham was architect of the J 9f.S thool Foundation Finance La''· .... hich .... as based upon hi\ \tudies publhhcd in two bro­ chures, "A Quest for Quality" and An Em­ phasi!> on E arning.s. \fo\t of the U~Jllfitant \chool 6nante le~slation enacted 5in(.(: J 9 t5 bt·ar.. the imprint of his leader-ship and thinkine:. lie holds a doctorate from the ni .. er ity of Chitago. \Cnecl for h"enty.four year ;1 pro­ fe\\or in the ni .. ef\ity of Kansa' daool of 1-.ducation and pro' ided leader h.p fr.r the t..ttc A''oci••tion of C"l.ool Boards for many 'e~r) d'> ib nt u~h e '>ecretal). Dr. Althaus fir.'>t joined thl tate Department of Public Jn­ \truttion in 1959 and mt 1966 hns repre- wntcd the Department C n()rdinator of the lo\\a Proje<:t, a coopera .J.dy en~ged in b) thirteen ~lid-\\'est slates.

60 Looking Ahead While there was a marked expansion of the State Department of Public Instruction during the 1945-1967 period, there remained a critical need for additional services necessitated bv the new school district system; the expansion of vocational education and other instructional programs, better in-service training for admin­ istrators and teachers, uniform record keeping systems, and better procedures for evaluating educational progress. Also, heavy bur­ dens will be thrown on the Department of Public Instruction with elimination of the 105 county superintendents and all intermediate

units when the Educational Amendment of 1966 becomes fullv✓ operative in 1969. Title V of Public Law 89-10, the Elementary and Secondary Education Act of 1965, had by 1967 provided funds from federal sources for strengthening the Department of Public Instruction, with additional projects approved to further expand the services of that agency. An outline of improvements projected in 1967 included: • Refinement and coordination of reporting practices for collecting educational data. • Expansion and use of data processing to include all areas of teacher accounting and certification, school accreditation, distribution of school finances, and supportive services for expanded . • Development of a centralized accounting service for all federal- state programs administered by the Department. • Expansion of the program of field auditing. • Expansion of informational services. • In-service training programs for staff personnel. • Development of complete records of teacher qualification on elec­ tronic tape. • Re-examination and upgrading of the practice teacher program. • The comprehensive evaluation of all Kansas school systems. • Provision for additional planning and experimentation in school ad­ ministration, supervision, faculty improvement, and library services. • Additional personnel to administer the above projected services and to strengthen programs already established. In 1966, the Kansas Department of Public Instruction agreed to cooperate with twelve other mid-western states in developing and implementing a new educational information system directed toward the five areas of facilities, finance, instructional programs, personnel, arul the pupil. This program, known as the Iowa Proj-

61 ect, is headed by the Iowa Department of Public Instruction. Dr. Carl B. Althaus represents Kansas in carrying forward this project. “Creation of a total system has been prompted by the critical need for more educational information by educators and school admin­ istrators. Not only are these groups demanding more information, but they are requiring that information be made available to them much more rapidly than before.”20 The Kansas state superintendent and his staff helped lay the groundwork for far reaching changes in the organization of the state agency for education when they went on record in 1955, sug­ gesting that the best type of organization for a state department of education is a lay board elected by the people, with the board authorized to appoint a commissioner of education as its chief administrative officer.21 The division of state responsibility for education among sev­ eral agencies became increasingly unsatisfactory as educational programs expanded and federally sponsored activities multiplied. This division of administrative responsibility included school transportation by the safety division of the highway department; surplus property for schools by the state budget division; com­ modities for school lunch programs by the state social welfare agency; inter-school competition in athletics, music, forensics, and essay writing by the Kansas State High School Activities Associa­ tion; safety inspection of schools by the state fire marshal; and vocational education and rehabilitation services by the state board of education, which, in this capacity, is a separate agency outside the State Department of Public Instruction. Election of a state superintendent every two years on a partisan political ticket did not guarantee continuity of administrative policies, and Supreme Court decisions made constitutionality of the administration of vocational programs by the state board of education questionable. Because of doubt at this point, the 1965 legislative session ex­ cluded the state board of education from some functions it had performed as a branch of the Department of Public Instruction since its organization in 1945. Following these exclusions, the state superintendent was made the state authority for junior colleges, which had been a function of the Department of Public Instruction; he was author­ ized, without board approval, to enter into agreements and de­ velop plans with federal agencies for the administration of fed­ erally financed programs; and the governing body of a newly created state technical institute did not include the state board of

62 education or any of its members. A governing board, consisting of the state superintendent and two other persons appointed by the governor, was created to act as the state authority for the technical institute. In order to correct these and other deficiencies, the Legisla­ ture, early in 1966, adopted a resolution to amend the Constitu­ tion.22 The amendment provides for the creation of a state board of education composed of ten lay persons to be chosen by the electors of ten board-member areas into which the state will be divided. The elected state board of education, under provisions of the amendment, will appoint a state commissioner of education. The proposed amendment, which was submitted to the Kansas electorate in the 1966 general election, was approved by a sub­ stantial majority. In the same election a state superintendent was chosen for a two-year term. Thus, the Legislature will have two years in which to work out details for conducting the election to select members for the state board of education, and make the amendment fully operative not later than January, 1969.

Internal Organization of the Department Because of continued growth of the Department of Public Instruction, and the multiplication of duties assigned to it, an internal reorganization was effected in 1955 by forming three di­ visions. These are the divisions of instructional services, admin­ istrative services, and accreditation and teacher certification. Each division is under the leadership of a director, with the work of each division assigned to sections, which are also headed by directors.0 The development of educational programs and activities and their relation to the Department of Public Instruction are outlined in Parts II, III, and IV of this chapter. For convenience these programs are reviewed and described under the appropriate di­ visions of the Department as indicated above. In the past, some of these functions have been administered by the state superin­ tendent, the state board of education, other state agencies, or under organizational patterns of the Department that no longer exist. The history of some of these programs is not limited to the 1945-1967 period, but their development during earlier years is described. Among such programs are state textbook adoptions, school district organization, and teacher certification. °See page 113 in the Appendix for organization and staff personnel.

63 E ducational Leadership Educational leadership is one of the principal functions of the State Department of Public Instruction. Evidence that the Kansas Department, in 1967, is in a position to provide such lead­ ership is found in the number of staff members who have received recognition outside the state for service in the fi eld of education. hown here are those who have held office in regional and national organizations, and otherwise have shown qualities of leadership over and beyond their contribution to educational improvement at local and state levels.

Ceor~e Heida (front t O\\ • D irector of chool J"acilitie\ ~cr u: \as President of I nter\t.•te chool Buildmg Sen itc iu 19(,0-fil. Prc,idcnt of tht ( ountil of Stale Dire<. tor\ of I:du<.ational Pl.mt en ice' in IIJ&-i (,5 .md a mcmb d the Board of D ire<.tOr\ of the :\ation.ll Counctl on choolhou\c ( omtruction for tl•c )ears J

\\ C k amp,chrocdcr talc upenntendcnt, j, a mcmoer of the National Coum:tl of Clud . tatt chool Offictr Tim organi1ation pla)S an important role in shaping cdu<: ~tiona) poiJc, and "ork.. do,d_> '' ith Con~c ' in de\ clopin~ lcltidation affecting edu<:ahon nation'' tde. rU a member of the \tuff before bccomin; wte Superintendent \lr k amp~t:hroeder '' .l'> <~<.th c at regional and national le~ els in the school fa<.'llitit:ll field F. Floyd Herr, Director of the Division of Accreditation and Teacher Certification, has been President of the National Association of State Directors of Teacher Education and Certification, President of the Central States Organization of State Departments of Education, a member of the Secondary School Commission of the North Central Asso­ ciation, a member of the National Study Commission Planning Committee of the Council of Chief State School Officers, a member of the National Study Committee of the Coun­ cil of Chief State School Officers, an executive committee member of the Department of Rural Education of the National Education Association, a member of the Midwest Conference for Rural Life and Education Committee of the National Education Asso­ ciation, and a member of the National Council for Accreditation of Teacher Education. George Cleland, who holds a doctorate from the University of Kansas, is Director of the Division of Instructional Services. He served as President of the National Asso­ ciation of Secondary School Principals in 1957 after having held the offices of first and second Vice-president of that organization. lie continues to serve on the important Publications Committee of that Association. In 1965, Dr. Cleland was appointed to serve on the National Committee on Secondary Education, a group composed of Americans chosen to conduct studies in that field. Clara II. Robertson (back row), Consultant in Special Education, is 1967 President- Elect of the Division of Visually Handicapped, Partially Seeing and Blind, Council for Exceptional Children. She was Secretary of that organization, 1964-1966, and News­ letter Editor, 1960-1962. Mrs. Robertson also served as Editor of the Newsletter of the National Association of State Directors and Consultants in Special Education, 1965-66, and as Editor of the Newsletter of the Association of Educators of Homebound and Hospitalized Children, a Division of the Council for Exceptional Children, 1964-65. Ruby Scholz, Director of School Lunch, was Southwest Regional Director of the American School P'ood Service Association, 1958-1960. James Marshall, Director of Special Education, was President of the National Association of State Directors and Supervisors of Special Education, 1965-66. He served as Consultant for the U. S. Office of Education on three projects: Review of State Plans and Special Education Administration Projects, December, 1966; Guidelines for Deprived Handicapped, Title I, August, 1965; and Finance in Special Education, December, 1960. Denzell Ekey, Director of Civil Defense Education, was President of the South Central Region of the American Driver Education Association, 1962-63, and a member of the National Board of Directors of that Association, 1962-1964. He is 1967 Chair­ man of the Disaster Preparedness Committee of Safety Education Supervisors of the National Safety Council. Lawrence Simpson, Director of the Division of Administrative Services, was Kansas State Chairman of the North Central Association of Colleges and Secondary Schools, 1959-1964; a member of the Accreditation Procedures Committee of the Secondary School Commission of the North Central Association; and a member of the two-person team for evaluation of the U. S. Dependents Schools in Puerto Rico, 1961. Mr. Simpson has been a member of the National Study Commission of the Council of Chief State School Officers since 1966. Margaret Van Horn, Secretary to the State Superintendent, was President of the Kansas Association of Educational Secretaries in 1966-67. From 1964 to 1968, Mrs. Van Horn is serving as State Director for Kansas of the National Association of Educa­ tional Secretaries, an affiliate of the National Education Association. Harold Caldwell, Department of Education Consultant in Audio-Visual Flducation, was President of the Association of Chief State School Audio-Visual Officers, 1965-66. He has published a brochure on Alcohol Education which was used nationwide. Mr. Caldwell also prepared a film on libraries which was rated one of the two best in the country.

65 part ii the division of instructional services

~ l os t of the recorded history of educati on in Kansas deals with the mechanics of operating schools; finding and making available sources of revenue for their support, organizing and re­ organizing school districts; codifying schoolla\\S, dissecting statis­ tical data; and wrestling with such problems as tuition charges, school transportation, requirements for teacher certification, text­ book adoptions, school facilities, health standards, and teacher supply. Comparatively little has been said about the irnprove­ ment of instruction except as these important concerns indirect!} affect the quality of teaching. Only in recent years has the State Department of Public In­ struction had funds with which to emplo} specialists in curnculum development, and personnel, who can give full time and attention to helping teachers do a better job. \Vith a few rare exceptions state superintendent of public instn1chon ha \ e been a\\ Me that improvement of instruction is lhe real purpose to he served b> schools but, lacking funds and staff wilh which to reach this goal mos t of their time and energy of neccsslt) have been de\ otcd to keeping the schools in operation.

Or Ct>orge Cleland, D1rector of the Oi.. asion of Jn,tructional enices, di cmSt.>S future program\ , .. ith Henn ParJ..er. Title I P L. 59-10; C. C. Rice, Curriculum James ~Janhall , pecial Education. Willard f o~ter , Guidance and Pupil Personnel en it.~ and \\ arren Bell. Title II, P. L. S,9-10. directon of the St'<.1ions in his di\ision. From the establishment of the first schools in the state, these officials played an important part in the certification of teachers and the snpervi-ion of institutes established for the purpose of raising teacher qualifications. They published courses of study as instructional guides, hut it was not until 1915 that elementary and secondary school supervisors were added to the state super­ intendent’s staff There were only four of these assistants to cover the state until two additional ones were added in 1945. In spite of this limitation and the inspectorial nature of their assign­ ment, they contributed greatly to upgrading classroom procedures in their dual roles of helping teachers and evaluating schools for accreditation purposes. A major contribution to the improvement of instruction was made by state superintendents, who prepared and distributed courses of study, teachers guides, and other instructional mate­ rials before 1915 when the Legislature first granted specific au­ thority to provide such services. The better prepart’d teachers of the 1960’s do not need the precise suggestions carried in the early courses of studv, hut do find helpful the modern instructional guides that include bibliography, results of classroom experi­ mentation, and adaptations to the latest educational philosophy. The first elementary courses of study that were not based on the textbook were published in 1934 by State Superintendent \V. T. Markham.23 Thev introduced elementarv teachers to the social studies concept of organizing instructional materials. The division of instructional services also contributes by mak­ ing available to teachers and administrators information regarding audio-visiud aids, teaching machines, language laboratories, team teaching, and other approaches to good instruction. In addition to services from the state superintendent’s office and instructional equipment available from commercial sources, the teacher of 1967 has decided advantages over her counterpart of 100 years ago with respect to teacher load. In his annual report of 1868, State Superintendent Peter MaeYicar gives some clues to conditions under which teachers of that time carried on their work.24 Ac­ cording to his report, Topeka with an enrollment of 695 pupils employed eight teachers, a pupil-teacher ratio of 86; Leaven­ worth, with 1637 enrolled, employed twentv-nine teachers, a ratio of 56; while Atchison, with 1104 pupils, employed only eleven teachers, a ratio of 100. These were consistent with other pupil- teacher ratios reported during that period. 67 Textbook Adoptions The history of instructional programs in Kansas would not be complete without a review of textbook adoption policies and their impact on education over a sixtv-year period. Periodically, the textbook issue became a political football with the educational interests of children disregarded. The adopted textbooks usually determined the subject matter to be taught as little supplemental material was available to teachers, many of whom were ill-pre­ pared for their tasks. Soon after World War II higher standards were demanded of teachers, a wealth of instructional material be­ came available, and the knowledge explosion made everyone aware that all knowledge in a given field could not be found between the covers of a textbook. Uniform statewide textbook adoption was a controversial issue from earliest days of statehood. State Superintendent Isaac T. Goodnow, 1863-1867, joined most of the superintendents of that period in urging that a law be enacted providing for such uniformity.25 However, his successor, Peter MacVicar, took the opposite view and expressed a philosophy that coincided with arguments used by those seeking repeal of such a law eightv-eight years later when he said: . . . “I presented somewhat at length the impracticability of requiring by law a state uniformity of textbooks, and of giving either to a state superintendent, or to a board, the power of deciding what that uniformity should be for a series of years. . . . A vast system of state monopoly would be created. It is doubtless much better that books, like other products of brain and industry, be left free to a healthy compe­ tition.”26 Opposition to such a proposal by men of Superintendent MacVicar’s stature was a factor in delaying the enactment of a textbook law until 1897, twenty-six years after he left the superin­ tendent’s office. The 1897 act created the School Textbook Commission, which included in its membership the state superintendent as ex-officio chairman with the right to vote on ah propositions. It was the commission’s responsibility to contract with publishers, adopt uniform series of textbooks, and set prices. A unique provision of the law foreshadowed later unsavory developments. No one, except members of the commission was to be present or cognizant of any proceedings of the commission during any time that it was in session and no member was permitted, during any of its meet­ ings, to give information to anyone about what was going on in

68 the meeting. Although the law did provide for publication of pro­ ceedings of the commission after business had been transacted,27 this probably would not have satisfied 1967 proponents of “the right to know.” Writing in 1937 on the statewide adoptions of textbooks, C. (). Wright, a former executive secretary of the Kansas State Teachers Association, paid his respects to the system: “Starting with 1897 the profession faced a forty-year period which was largely characterized by political control of textbook selection. The period from 1897 to 1937 will go down in our history as one where politics played a major role in textbook adop­ tion—politics of book companies, of vote getters, and of patronage distributors. Except for rare occasions, the children of the schools and the desires of the teachers were pushed to the background. Throughout the forty years, educational leaders made vigorous protests against the various legislative acts providing for the lay selection of texts and against the way governors, both Republican and Democratic, administered adoption laws. “The notorious legislative investigation of the textbook ques­ tion in 1932 uncovered gross inefficiency and political influence in the state printing plant, and the investigating committee rec­ ommended the abolition of the old School Book Commission.”28 The shifting of textbook adoption responsibilities from one body to another is one indication of the sensitive issues involved." The most serious problems developed after 1913 under a legis­ lative act in which elementary textbooks, and some in the high school field, were manufactured in the state printing plant.29 With the inauguration of state printing of textbooks, the use of unau­ thorized textbooks became serious business. A punitive provision in the law that was not repealed until 1957 stated that any school official who was convicted of adopting, using, or procuring for use in the public schools in the same branch, any textbook as a sub­ stitute for an adopted one was subject to a fine of not less than $25 nor more than $100, or by imprisonment in the county jail, or both such fine and imprisonment.30 This law, enacted in 1913, antedates by several years thought control programs initiated by the present governments of Russia and China. As many contended, state printing probably resulted in cheaper textbooks during early years of the program. However, by 1953 the nationwide per pupil costs for all elementary and secondary pupils was $3.49, according to the American Textbook °See page 109 in Appendix for textbook adoption agencies.

69 Publishers Institute.31 The comparable Kansas figure was $8.35 al­ though supporters of state printing of textbooks created a wide­ spread impression that printing in the state plant resulted in lower costs to school patrons. Notwithstanding the cost factor, the system resulted in the use of many inferior textbooks. The state superintendent was ex-officio chairman of the agencies responsible for textbook adoptions until reorganization of the Department of Public Instruction in 1945. At that time, a lay state hoard of education, of which the superintendent was not a member, was assigned the task. The lay hoard, operating without professional leadership, often made ill-advised adoptions. The law did provide for an advisory committee, a majority of whom were teachers and school administrators, hut the hoard often disregarded committee recommendations. The method used by the board in selecting advisory com­ mittee members was a major weakness of the adoption procedure. During the 1950’s, contrary to recommendations of the state super­ intendent, the hoard followed a policy of letting each member appoint his proportional share of advisory committee members rather than name them by board action. Under this plan, eight of the fourteen advisory committee members in 1954 came from the home towns of board of education members making the ap­ pointments.32 Two incidents illustrate the kinds of unwise decisions that hastened the end of statewide textbook adoptions. In the 1950’s, penmanship series were changed so often that some pupils were taught under three different systems before they reached the eighth grade. On another occasion, the adoption of a modem series of reading textbooks, costing school patrons of the state hundreds of thousands of dollars, was replaced with another series before any elementary pupils had completed the first series. This action was taken over the protests of county superintendents, school patrons, the state superintendent, and other school officials. Added to this kind of operation were public dissatisfaction with the state printing of textbooks and the demand of local systems that they be permitted to select their own instructional materials. These unwise procedures led to legislation that abolished the whole svstem* in 1957.33 The 1957 legislation also created a State Textbook Review Committee, which twice each year publishes lists of textbooks suitable for use in Kansas schools. Members are appointed by the state superintendent with approval of the state board of educa-

70 tion. All textbooks submitted by publishers are listed unless, in the judgment of the eommittee, the books eontain subversive ma­ terial, or eaunot be elassified under the subjeet matter area for which a textboook is to be listed.31 This committee, assisted by a member of the state superintendent’s staff, has operated suc- cessfullv since it was organized in 1957. The published lists provide a welcome service to school officials, who now make their own adoptions at the district level, and determine when textbook changes are needed. With the plan in full operation since 1962, following expiration of the 1957 adoptions, the demand for uni­ form textbooks and state printing of them have experienced a peaceful death. The Curriculum Section Believing that the curriculum includes all the experiences which pupils have as they participate in and relate to life of the school, this section has attempted to project this philosophy by means of conferences, curriculum guides, and the service of con­ sultants. One feature of expanded services after 1955 was the addition of specialists to provide leadership and consultative help in fields that many schools had failed to develop adequately. Organized physical education courses at the elementary level was one of these neglected areas. Prior to 1955 such programs were non-existent in hundreds of elementary schools where interschool athletic competition, which had gotten out of hand, was thought bv manv members of the communitv to meet the phvsical devel- opment needs of children. In some instances as much as one-fourth of the average school dav was devoted bv members of the team to football, basketball, or some other sport, either in practice or actual competition. At the height of this movement in the mid-1950’s, there were schools in which fifth and sixth grade pupils played eight and ten-game football and basketball schedules. The teams often traveled long distances on school time in company with teachers, other pupils of the school, and team supporters in order to engage in these contests. The Legislature had not at that time made elementary school accreditation a condition for receiving state funds. Some communities rebelled when the state board of education approved regulations, upon recommendation of the state superintendent, to limit such practices. Even sports writers for the press took up cudgels against such restraints, overlooking the fact that high school and college athletic competition is subject to regulation. 71 Illustrative of the general attitude toward physical education courses a decade ago was legislative reaction when the state su­ perintendent first recommended funds for the employment of a physical education specialist. Out of one legislative committee came the suggestion that if such a position were created, it should he on the staff of the High School Activities Association, the organization that regulates athletic competition, rather than in the Department of Public Instruction. Attitudes have changed within the past twelve years. The Legislature did appropriate funds for the addition of a physical education specialist to the state superintendent’s staff. Under his leadership, and by means of conferences, workshops, community meetings, demonstrations, and the publication of a series of teachers guides, interest in organized physical education developed rapidly. As elementary schools made physical education courses available to all pupils, the clamor for interschool athletic competition, in which a limited number of pupils could participate, began to subside. The use of school time for team practice was discontinued or kept within limits. Not only did organized physical education in schools add to the well-being of pupils, but, by deemphasizing interschool atldetic competition, led to improvement of instructional programs in all subjects. Another major contribution to better instruction in Kansas schools during the 1955-1967 period was the expansion and up­ grading of school libraries. This growth, especially at the ele­ mentary level was phenomenal. The Legislature recognized the value of school libraries as earlv as 1876, when a law was enacted authorizing school boards to levy from one-half mill to two mills in order to provide funds with which to purchase books for school libraries.35 Again in 1925, a law was passed that recpiired school districts to annually expend a minimum of $5.00 per teacher for the purchase of library books from a list approved by the state superintendent. The 1925 legislation and the Kansas Reading Circle, an enterprise of the Kansas State Teachers Association, resulted in better libraries, but in most small elementary schools, and in some large ones, the library remained the weakest part of the instructional program. In 1962 the Department of Public Instruction obtained funds with which to employ a school library consultant. This addition provided a stimulus that led to an unprecedented growth in ele­ mentary school libraries, and marked improvement in those at the high school level. Under direction of the consultant, an ad-

72 \ i~on group. composed of qualified school lihranans, wa~ named to a~sist in preparing a catalog of apprm eel hooks for school li­ brari es, which \\a~ published and distributed to schools . A ma­ terials center. "1th an ample collection of the latest puhbca­ twn~ "as cstahh~hed in the Department for the usc of ~ch ool lilnanans, teacher~. and aclmim~trators m ~elcctmg tttl e~ for their libraries. In order to stimulate mtcrest and ~upport for the ~c h ool lihrar;, numerous conferences, workshop~, and demonstrations were conducted throughout the state.

Curnc:ulum comultant'> C a r I ll cmp~tcad , I i b r a r ) , Lucale A\hcr, math; Jan llolm an, '>Ci­ cnt'c; and H arold Cald\H~II, madao-' i\ual, di,cu" nc,-. cquip­ mcnt and de' clopnu.•nt' prior to 'thool 'isatataom and prcp­ .1ra ta on of pubhcataom in their 'Pl'cific: areas.

Ihdustrial ,uts was another field that long had been neglected in man; ~:c h ools \Yhile mc1e.l~ing emphas 1 ~ had been placed on 'ocat10nal education, no st,lt<.' leadersh1p h,Hl been prm iclecl to gl\ c direction to thi~ important ~ u hject. The ~late organ1;.at10n of industrial arts teachers, seming the need fm such leadership, took the initiative in \\or king for a consultant position in the Depart­ ment of Public In~truction These efforts "ere successful. The appointment of ,\ consult,mt pwcluced re~ults m the industJ wl arts field comparable to those in ph} s1cal educalwn and h hrar; ser­ ' JC('S when sp<'ciah~ts in those areas became acti\ e in the D epart­ ment. The first industrial arts consultant ''as appointed in 1964. \luch the ~

73 the direction of Department personnel.36 The subject matter specialists spend about one-half of their time in the field conferring with administrators and teachers on local curricular problems.

A series ol curriculum conferences is held annually* at conveniently + located centers. While in the office, the consultants prepare teachers’ guides for publication, compile lists of instructional ma­ terials, and give individual help to teachers who contact the Department for such services. These specialists serve as consultants in the administration of federally financed programs designed to improve instruction. The curriculum section also administers Title III of the National De­ fense Education Act under which federal funds are provided to reimburse school districts for equipment purchased in order to enrich instructional programs in several subject matter areas. Special Education The Kansas Society for Exceptional Children, composed of lay and professional persons, was organized in the mid-1940’s for the purpose of obtaining legislation to provide special services for the education of handicapped and other non-typical children.37 The movement was supported by the Kansas Council for Children and Youth, the Kansas State Teachers Association, the State Fed­ erated Women’s Clubs, the Congress of Parents and Teachers, the State Department of Public Instruction, and other groups con­ cerned for the educational welfare of all children. The activities of these organizations, in keeping with nation­ wide interest in such programs, produced legislation in 1949, which authorized the creation of a special education section in the Department of Public Instruction, and the formation of spe­ cial classes in school districts.38 A modest appropriation was made with which to finance the new activity, and the state super­ intendent was directed to appoint a director and other personnel. However, the first appropriations for the reimbursement of school districts that organized special classes were not made until 1951. The special education staff functions under the philosophy that the objectives of education for exceptional children do not differ from the objectives of education for other children. Gen­ erally speaking, these objectives are self-realization, human re­ lationships, economic efficiency, and civic responsibility. How­ ever, methods used in achieving these ends often vary from those used with other children. The role of the special education sec­ tion, since its organization in 1949, has been to provide consulta-

74 tive services to schools, and to assist them in establishing programs for exceptional children; develop standards for specialized in­ struction at the highest possible level of quality; and administer state financial aid to local districts to compensate them for the excess costs of providing educational opportunity for non-typical children. Special education programs are established by school districts on a voluntary basis, and the enrollment of children in such classes is not mandatory. The voluntary features of the law account in part for the comparatively slow progress made in organizing classes immediately following enactment of the 1949 legislation. Other problems faced by this section in its early promotional work were financing at the district level, inadequate space in ex­ isting school facilities for special classes, a short supply of quali­ fied teachers, areas of sparse population, an oversupply of school districts, indifference, and in some instances, local opposition. Supplementary legislation in 195139 made provision for funds with which to reimburse school districts that established classes for the mentally retarded, or provided instruction for homebound children. In 1953 the Legislature more explicitly defined excep­ tional children40 and appropriated funds for districts that provide special instruction for any or all classifications of these children. With inauguration of the program in 1949, the statutory definition of exceptional children included those who are intellectually gifted, and extended authority to give such children special full­ time or part-time instruction. The interest in special education for non-typical children continues to grow, and numerous organi­ zations outside the schools are working in the field of mental retardation. The special education staff members have cooper­ ated with universities and colleges in developing teacher educa­ tion opportunities in this field, and have worked closely with personnel in the United States Office of Education. The report of one study conducted by Dr. Marguerite Thor- sell of the special education staff, in cooperation with the Wash­ ington agency, was released in 1963.41 This was an experiment in providing specialized instruction for mentally retarded children in regular classroom settings by teachers, who had no special preparation for such teaching. The need for discovering effective methods of giving such instruction to handicapped children in regular classroom situations is readily apparent in sparsely settled areas, which are divided into numerous small school districts. In such instances, there is an insufficient number of children to

75 justify the employment of specially trained teachers, who are in short supply. The tlnee-year study was conducted in the western half of Kansas where, in 1957, there were only nine classes for educahle mentally retarded children. Because of limitations that could not he eliminated, the over­ all purpose of the study was not substantiated by analysis of the data collected through the evaluation program. However, much was learned about the problem of providing special education ser­ vices in sparsely populated areas, and the need for continued in­ vestigation of the possibilities was clearly demonstrated. Guidance and Counseling Services The use of guidance and pupil personnel services in Kansas schools is a recent development. In the 1946-47 school year only 21 of the state’s secondary schools had at least one person assigned as much a one hour a dav for such work and onlv 222 non-admin- istrative personnel were assigned to such guidance duties as re­ cently as 1957-58.'■ The first leadership supplied by the State Department of Public Instruction in this field was provided in 1956 with the employment of one guidance counselor. The first standards for certifying counselors were filed with the Revisor of Statutes by the state superintendent in 1957. It cannot be said that guidance services expanded in Kansas as a result of popular demand, as is illustrated by an unfortunate incident that occurred in 1959. Because of resistance to certi­ fication standards for counselors, a legislator was persuaded, in the closing hours of the 1959 legislative session, to introduce a resolution revoking adopted standards for such certification.43 This misunderstanding was not cleared up until the 1961 legis­ lative session at which time the 1959 action was nullified. Counseling and guidance activities have expanded rapidly since the National Defense Education Act became operative in 1959. In that year there were only eighty-five full-time coun­ selors in the state, who qualified under standards incorporated in the state plan and agreement with the United States Office of Education. W hen federal funds became available under pro­ visions of the federal act, the guidance staff was enlarged to in­ clude three counselors, in addition to the director, who had been appointed in 1956. Since 1959, the number of full-time coun­ selors employed in public schools has increased to 161, and the number of part-time qualified counselors has shown a comparable growth.

76 Members of the Department guidance staff serve as con­ sultants to local school counselors, organize and hold conferences for counselors and school administrators, make studies regarding drop-outs and high school students who enter college or take employment, cooperate with institutions of higher education in developing training programs for counselors, publish and distrib­ ute numerous bulletins, and exercise general supervision over a state testing program. Details of administering this activity have been assigned by the guidance staff to the testing service of the Kansas State Teachers College in Emporia. Aptitude tests have been given to ninth and tenth grade students annually since 1959-60. Results of these tests are made available to schools in which the students are enrolled, and may be used for research purposes under special arrangements with the guidance section of the State Department of Public Instruction.

Titles I and II of Public Law 89-10 Titles I and II of Public Law 89-10, the Elementarv and Secondary Education Act of 1965, are administered by two sec­ tions in the division of instructional services. Title I was not designed to give general aid to schools, but to provide federal money with which to finance projects that will improve educa­ tional opportunity for culturally deprived children from families living at the poverty level. Appropriations to fund these programs were not made until late in 1965 for the school vear 1965-66, which meant that a verv small staff had to plan quickly to make these funds available to schools during that term. Of the 10.8 million dollars allocated to Kansas, only about 9.8 million were approved for use in the schools because the money was appropriated so late in the fiscal year. Obtaining personnel to man the projects that were ap­ proved was a difficult task. In some instances, projects were re­ vised to place an overemphasis on the purchase of equipment and materials in the absence of qualified persons to handle the original projects. In allocating the limited funds available under Title II of the act, top priority was given during the first year to elementary schools. One hundred thirty-five non-public elementary schools enrolling more than 26,000 pupils benefitted under provisions of this Title. Evaluation of projects under Titles I and II were not completed until late in 1966.

77 part iii the division of administrative services

The Di\ i~ion of Aclminhlrative en i<:c~ , \\ lll<:h h organi.wd in ~i\ wction~, has carried an cspec:iall) hca\) load since 1965 hc<.-.tll\l' of fcderalh fillancecl programs rccenth placed in the Dcp,u tnwnt for admilll'llralwn Dutie'l of the dl\ 1\H>n are brieH) de\CJJ bed l)\. sections. I ..n, renee imp.,on, '' ho jomecl the tate Department of Pub­ he lmtructwn in 1957 a<., ,t consultant in the Elcmcntm') and Scc­ onchu' ~ \ ccreditation Section, became clircctm of that section t\\ o ) cat.., later. In addition lo his other duttc\, \I r. ~tmp~on sPn eel in the D epartment as coorclinatm of Fech·r,tl programs pending appmpn.ttion of funch h~ Congre\'l \\ 1th \\ luch to cmplo) partment's om­ cia! pn blication, and ~l'\ c1 ttl 1mportant bulletins and brochures. I lc \\ n~ appointed diJ cc:tm of the D1\ 1~10n of Administrath e Sen ices in 1963.

Guidin~ the Oi\ bion of Admini,tratl\ t: en ice' arc dire<:tor'i tandin~ Gcor~c Keith chool Oi,trict Unification La\HCn l p'on, Did ion Drrcctor Dcrucll F. key Cn i1 Dcfcml ~dult Educahon; (waled \\ Good'~ in, tati~ht:<~l en 1cc Rub) cholz, c1 ool Lunch; Fa' kamp,chroeder, f inan<.-e; and Geor::c Herd chool Facilities School Finance Section Fay Kampsehroeder, who has held a key position in the De­ partment of Public Instruction since 1949, is the director of this section. In fact, most of the activities for which this section is responsible have been initiated under her leadership. The ad­ ministration of state funds for the general support of schools was handled by this section until 1965, when the addition of a number of new programs made it necessary to transfer this re­ sponsibility to the statistical services section. The school finance section serves as a clearing house for other sections and divisions of the Department, and for local school officials who need informa­ tion pertaining to financial and statistical records in the Depart­ ment. Another time-consuming activity of the finance section director has been the coordination of Department of Education procedures with the state Department of Administration and other state agencies. Preparation of the Department budget and supervision of accounting procedures for the numerous programs administered by the superintendent and his staff add to the duties assigned this section. Because accounting procedures required by federal agencies differ from state accounting practices the record keeping work of the section is almost doubled. This problem is discussed in Chapter IV. School Facilities Services School facilities services, initiated by the Department in 1951. were the outgrowth of school building, school equipment, and transportation needs arising in school districts with enrollment impacts caused by federal activities, and the need to make an inventory of school facilities throughout the state44 as part of a nation-wide studv authorized by Congress in 1950. The study was designed to be the basis for alleviating school building short­ ages created bv shifting population, increasing birth rates, obso­ lete school buildings4" and a backlog of needs developed during World War II. The Legislature did not authorize the Depart­ ment to use federal funds in conducting the survey until 1953, but in the meantime the Department, with the assistance of the state’s 105 county superintendents, collected the necessary data.46 In processing applications of local school districts for building funds under provisions of Public Law 815, there arose a demand from many other districts that the Department provide consulta­ tive services in the school building field.

79 School Lunch Programs A school lunch director was first appointed by the State Su­ perintendent in 1946. The director exercises general supervision over school lunch activities, trains supervisors and cooks in the schools, conducts field visits and computes the federal reimburse­ ment rate to school districts on a per meal basis.47 In Kansas the lunch program was very unpopular in the early days of its opera­ tion on the grounds that it was a socialistic venture and contrary to the American wav. Todav, the school lunch in most districts is considered to be a fundamental in the school’s operation. This is also true of the special milk program established by Congres­ sional action in 1954. The school lunch section cooperates with the Department of Social Welfare which handles the distribution of surplus commodities.

Statistical Services and School Finance The State Superintendent’s office has always had the task of collecting statistical data and incorporating in his annual and biennial reports tabulation of much of the information collected. 'NVith the addition of new activities and growth of the state’s sys­ tem of schools, the need for improved statistical services has ac­ celerated. Until recently the use of electrical data processing equipment has been limited to teacher certification procedures and related activities. Increasing use of such equipment became necessary in making studies to find a better formula under which to distribute state funds to schools. The equipment proved to be invaluable in making application of a proposed new formula as the basis for legislation leading to a school foundation finance law. Administration of this law is currently the principal duty of the statistical services section. Some background leading up to enactment of the foundation finance act is appropriate at this point. Prior to 1937 more than 95% of financial support for Kansas elementarv* and secondarv * schools came from local district ad valorem taxes. Since that year financing the schools has gradually changed from a local district responsibility to a joint endeavor shared by the federal government, the state, the county, and the local district.48 The first state aid for schools, other than an in­ significant amount from the permanent school fund, was appro­ priated by the Legislature in 1937 but changing conditions and a rigid formula for distributing the money caused the $2,113,000

80 distributed in 1937-38 to decline until by 1947 only 54% of the ap­ propriation for this purpose reached the schools. The 1937 law was repealed in 1949. From 1937 until 1965, when the first school foundation finance law was enacted, patchwork attempts to provide adequate financing of schools included a hodgepodge of at least a dozen funds from county and state sources to supplement school district revenues. Additional support was derived from federal sources including school lunch and milk funds, Public Laws 815 and 874.40 The National Defense Education Act and, in 1965, Public Law 89-10. No great amount of imagination is required to envision the complexities involved in administering such a multitude of funds from so many sources. Inequities in the property tax, inadequate support from the state level, and insufficient revenues from all these sources stimulated the State Department of Public Instruc­ tion, with encouragement from legislative leaders, to conduct studies and develop a formula that would provide substantially more state support from non-ad valorem sources, consolidate many of the funds already available, correct educational and tax inequities, and set up incentives for improving instruction in the schools. To this end, Dr. Carl B. Althaus, a specialist in the field of school finance and a member of the Department staff was asked to assume this task. Dr. Althaus, who had developed the basic formulas in most' finance legislation since 1947, accepted the challenge and began work on the project in 1963 with publication of his studies following in 1963 and 1964.r>0 The 1965 legislative session in which these proposals were

introduced made only¥ minor revisions in the formula submitted. Its most significant features were retained to become the school foundation finance law enacted that year.51 As a basis for distrib­ uting state funds the formula takes into consideration the prepara­ tion and experience of teachers, density of population as a factor in the reimbursement of school districts for pupil transportation costs, county-wide tax levies from ad valorem sources, substantial amounts of state money, pupil-teacher ratios, and an economic index to determine financial ability of each county to support its schools. One controversial feature of the law is a new method of limiting school district expenditures. Instead of mill levy limits heretofore used for that purpose, this act limits districts to spending only 104% of per pupil expenditures the preceding year.

81 The following tabulation, prepared by Fay Kampschroeder, director of the school finance section, compares the origin of school operational revenues in three years beginning with 1955-56. Whereas the state provided only 23.693% of school operational costs in 1960-61, under the foundation school finance act of 1965, the state’s contribution rose to 35.273% in 1965-66. Origin of School Revenue for Operational Purposes52 During 1965-66, 1960-61, and 1955-56 Source Amount Percent Amount Percent Amount Percent Local $92,360,582 35.588 $95,586,312 53.533 $60,387,962 50.452 County 52.072,453 20.064 34,404,444 19.269 23,666,183 19.772 State 91,542,748 35.273 42,304,329 23.693 32,000,524 26.736 Federal 23,551,863 9.075 6,258,850 3.505 3,638,350 3.040 Total $259,527,646 100.000 $178,553,935 100.000 $119,693,019 100.000

Civil Defense Adult Education The civil defense adult education program, which is federally financed, prepares public school teachers to give instruction in dis­ aster preparedness to adults and upper class high school students. Members of this section cooperate with civil defense authorities in a radiological monitoring program. Staff members promote the organization of classes in cooperation with public school officials. These classes are taught by teachers prepared in the training pro­ gram, who are paid a nominal fee for these services.

School District Unification State Superintendent Peter MacVicar, who served from 1867 to 1871, doubtless made the understatement of his illustrious ca­ reer when he said, “More difficulties probably arise from organiza­ tion and changes of school district boundaries than from all other sources.”’3 To Superintendent MacVicar’s observation might be added the fact that no social change is made with more agonizing resistance than accompanies school district reorganization, and is then accepted with so much universal satisfaction a year or two after its consummation. The 9,284 school districts that had been created in Kansas bv 1896 did meet the needs of a pioneer society in which academic achievement was secondary to wresting a living from the soil. The schools supported by these districts also served as community centers with ciphering matches, box suppers, spelling bees, com­ munity sings, and other social activities. Under these conditions there developed a sentimental attachment to the one-room school

82 that persi.,tecl long after the educational and economic welfare of the state demanded c.l ne\\' organitational framework within which .,choob might operate. .h receutl: as 1950. rural education wa"i thought of m term., of one-room <,chools although b) that date no semblance 1emained of the unif01 m system of school di.~tricts pre­ scribed l)\ the Constitution. In fact, 1)\ 1960 there had been created no le"i., than e1ghteen clifl ercnt kinch of distnct"i as to orga- 111/ation 01 funct1011, \\ hich called for an C\ er-increa<.;ing number of special l.n\ s to en.tble such .1 \ ariet) of orgam.t.atwns to func­ hon.

""' '\annie I hn tzler tau~ht her cia" of '"teen \htdt·nh in thi' 'ocl \thoolhou'c in ',herman Count\ 01\tnct ()9 tn 1891-92 I h~ buildtn~ " ') mbolic of the tarl) h.ama' t-du1..ational f.t<:ilihc\ whtch aho \cned a\ lOlllmumt} center\.

The .,, 'item of common \chool distnch that count: supe1 in­ t<'ndents began orga11ii'ing m 1&5& did not long rem am umform as pro\ided in the Constitution 'Veakuc"i., of the sc.hool d1st11ct structure became e\ IClent as ca1 h as 1&95, m '' luch \car there w<>re 390 districts that chcl not maintain "ichool."" ln-1876, the Legislature authorited the orgauization of "ichool chstncts b) citiC'\ of the fir-,t .wcl second dass These dJsllicts ''ere gm en1ecl h: boards of educatton \\ ho did not \hare cluthorit\ \\ 1th an c.mnual meeting \H'IC highh autononHHJ\, and operated-outside the JUris­ clidwn of count) \tqwnntenclen t., Other de\ elopnwnt., "ien eel to outmode tlw ollglll,ll \chool chstnct S) stem. Thousands of the small common \Chool distlich did not haH' sulfieielll emollnwnt m filltlllCI.Iln'.,Otn"Ces to mamtam lugh schoob when the dcmc.md fm them lwc,une ('\ 1dcnt at the turn of the t·enturv. In I ~)00 , ll , 30~ -,tudt 11h '' en• til rolled m ~.uto.;,ts puhhc

S3 high schools, hut the number more than doubled during the fol­ lowing decade."1' As high school enrollments grew, several kinds of high school districts were formed, rather than follow the ob­ viously practical course of realigning existing districts so there would be sufficient population and financial support in each with which to maintain twelve grades of school. The high school districts thus formed operated under their own governing boards, separate and apart from those providing only eight grades of instruction, and usually included within their boundaries all or parts of several common school districts. This movement developed into a double deck or two-story system of districts with non-coterminous boundaries, which presented prob­ lems that defied solution until the unification laws of 1963 and 1965 established new organizational patterns. This type of dis­ trict organization evolved because of a fierce kind of loyalty to the “home district,” the reluctance of patrons to relinquish direct con­ trol of their elemental}- schools and, in some instances, opposition to higher taxes. One Department member observed during the district unification activities that many taxpayers fought to main­ tain the school district status quo as though their small inefficient districts had been let down from heaven in a basket. The first districts created to provide secondary education only were authorized in 1886 as county high school districts. Un­ der this legislation, any county with 6,000 or more inhabitants could establish such a district. '1 By 1890 an increasing number of common school districts began broadening their instructional pro­ grams to include high school courses. When this occurred in count}- high school districts, the residents of such common school

districts were faced with double taxation. Not onlv* were thev ✓ taxed to finance the county high school, but they also supported their local high schools without any outside financial assistance. Because patrons of count}- high school districts resisted losing tax resources, it was not until 1923 that this issue was fullv resolved. Under the corrective legislation, the county high schools became community high schools supported by all territory in the county that was not included in another district that maintained a high school.58 A law that provided for the establishment of township high schools was enacted in 1911'™ but it was repealed in 1915 before many such districts had been organized. Repeal of this law was the logical result of a 1915 law that provided for the establish­ ment of rural high school districts."' Under this act any area,

84 upon petition of 40% of its electors, could call an election for the purpose of voting on a proposition to establish a rural high school district. When formed, these districts were governed, as were common school districts, by annual meetings and school boards. In the original legislation, high schools organized under provisions of this law were limited to providing instruction for grades nine through twelve. However, other kinds of rural high school dis­ tricts were authorized by legislative action before the unification acts of 1963 and 1965 eliminated most of them. In the course of one hundred years, the system of common schools that had been created by county superintendents became an umvieldly conglomeration of districts governed under scores of general and special laws. Good schools developed in spite of inefficient organization rather than because of it.° The Legislature, in its first moves to provide better districts, approached the problem as though it were a hand grenade from which the pin had been pulled. The action with respect to par­ tially depopulated districts illustrates this kind of cautious ap­ proach. Under a 1901 law, partially depopulated districts could he disorganized by county superintendents provided less than seven children between the ages of five and twenty-one resided in the district. However, the county superintendent could not act until a petition signed by two-thirds of residents of the district had been filed requesting such disorganization. In order to fur­ ther protect the district, the county superintendent’s action was not final until it had been approved by the hoard of county com­

missioners.'11 Section eleven of this same act authorized the countv✓ superintendent to convene a school for resident children when two or more adjoining districts each had less than five between the ages of five and twenty-one years. If the school was held the expense was to be divided among participating districts. The first major attempt to correct some of the inadequacies of the school district system was made by the Legislature in 1945 by the enactement of legislation that required all elementary dis­ tricts to he reorgan ized .A ll public officials in any way con­ nected with the movement had a rough time of it until the act was declared to be unconstitutional in 1947, on the grounds that the Legislature did not have authority to delegate legislative powers to the county committees that were in charge of the program. Among those subject to harassment were legislators, county com­ mittees, county superintendents, and the state superintendent. °See page 108 in Appendix for kinds of school districts that existed in 1963.

85 vVhile a ] 947 amendment to the reorganization law was under con icleration h) the Legislature, a delegation of about a thousand rural citizens, including wives and many children, de­ scended upon the Legislature. By way of protest, the group, which appeared before the Senate Education Committee, called for the abolition of county committees and a return to democraC) , charging that they were being forced into town school systems, and that farm children would have to travel long distances and he unable to help with farm chores. One elderh man testified, "\Vh\ m the name of God, com­ mon sense ancf democracy would a;1) one want to tear up our system which has brought schools from the next to lowest to the ne~t to highe<,t of an) state in the U mon ?"' 1 lie did not mention the scale used in arriving at such an evaluation.

,\lr. Care) Orr taught in th•s \tone schoolhouse in Lo ~an Count} District 41 m 1948- t9. During the 1950-51 term, 2,528 similar \Chooh ,.. ere still being u~ed in Kama'> hut only :330 remained in !.en ·ice in 1963-64.

The bitterness aroused h) reorganuation activities reached a climax when tv.·o senators recel\ ed letters threatening them \\"ith death unless the) lent their support to changes m the reorganua­ tion law.'-t tate uperintendent L. \V. Brooks reported that he receh eel similar threats In spite of the uproar much was accom­ pli heel under the 1945 legislatwu as the Legislature validated all redistricting completed before the upreme Court declared the reorganization acts to be un<.onstltut. )JJal. B) ~ l arch 1, 1947, more than 45 r~" of the ,l 12 elementan districts i11 existence on " \larch L 1945 had been affected in some wa) b~ the reorganii'.a- tion moYement. with 3,-oo of them ha\ ing been disorganized or had boundanes changed. Appro\:ima tel~ 4,:300 di tricts remained unchanged ..-

86 If the school district system was had in 1945 it was terrible by 1961 as population continued to move from rural to urban areas, school finance laws became more discriminatory against schools in urban areas, and special legislation further complicated finan­ cial and organizational problems. Disregard for the state’s edu­ cational welfare and the lack of local responsibility are reflected in common practices of the period. It was an exceptional year in which one or several schools did not operate with a teacher and only one pupil. At one time four boards of one-room school dis­ tricts were paying salaries to teachers who had no pupils; in one instance a board employed two teachers to instruct three pupils, all from the same family; the boards of some closed schools paid exorbitant sums to their members to transport pupils to other dis­ tricts; and the law permitted hundreds of schools to operate only eight months of the year. As recently as 1960 as many as 255 of the state’s 552 public high schools operated with enrollments of less than 75 students each, with 18 of this group maintaining school with less than 25 students. In an attempt to bring order from chaos, the 1961 Legisla­ ture enacted another district reorganization law for the purpose of creating unified districts, but opponents of any kind of de­ fensible realignment of districts exerted so much pressure that the bill as introduced was emasculated and, in a test case, declared by the Supreme Court to be unconstitutional on the same grounds that invalidated the 1945 legislation. No district reorganization was completed under this act. By 1963 most legislators were determined to enact a sound reorganization law that would be constitutional. The Attorney- General and other attorneys worked closely with legislators to insure that the bill as enacted woidd stand the test that was cer­ tain to come. The role assigned the state superintendent under the 1963 act00 was a complete reversal of the jurisdiction given him under the 1945 and 1961 legislation. In order to insure con­ stitutionality every significant procedure in the reorganization process required either the state superintendent’s decision or ap­ proval, including action taken by the county planning boards and, in some instances, the results of elections. The 1963 law provided for incorporating all territory of the state in school districts that offered instruction from grades one through twelve with authority to operate kindergarten and, under certain conditions, junior colleges. Unification procedures pro-

87 gressed under the time schedule provided in the law, but problems and inequities that could not he foreseen in 1963 were adjusted by amendatory legislation in 1965.07 Administration of the 1963 unification act brought down upon the head of the state superintendent a storm of vilification and abuse for which there is no recorded parallel. So much authority had been delegated to him that leaders of organizations struggling to maintain the school district status cpio, citizens with sentimental attachment to schools that had outlived their effectiveness, and outraged taxpayers who would be required to pay their fair share of taxes under the new type of district organization, leveled their campaign against the superintendent as though he had enacted the legislation by dictatorial edict. Administration of the unification law was assigned to a sec­ tion in the Department created for that purpose. Members of the section traveled extensively over the state consulting with county planning boards, holding hearings, and participating in hundreds of discussions and conferences. They prepared forms for the use of officials connected with unification activities, published instruc­ tional bulletins and brochures, and in other wavs contributed to the success of the program.0 In addition to administering the law, the Department was required to assume many duties heretofore dealt with by the state’s one hundred five county superintendents. These duties include certifying the boundaries of school districts to county clerks and advising them of all boundary changes; preparing up-to-date maps of all school districts; conducting hearings on appeals of local boards of education, who fail to reach agreement on proposals for transfer of territory from one unified district to another; and advising local school officials on legal matters pertaining to the ad­ ministration of the unified districts. One member of the unifica­ tion section also serves as a transportation consultant to boards of education that have found it necessary to expand their transporta­ tion services because of enlarged districts. Numerous lawsuits were filed against the state superintendent in an attempt to obtain rulings from the Supreme Court that would invalidate the statutes under which unification activities were authorized. Because this fate had befallen the 1945 and 1961 acts there was widespread belief that the 1963 and 1965 legislation would also be thrown out. However, decisions in all of the numerous court cases attacking unification upheld the law.'*' °Sce page 108 in Appendix for results of the unification program.

88 part iv division of certification and accreditation

Teacher Certification The experience of Miss Rosella Honey, who lived in the Elm Creek Settlement where Clyde is now located, typifies certifica­ tion procedures early in the state’s history. In the spring of 1864 this prospective young teacher presented herself at the county seat of County to take examination for a certificate. The records show that she made the sixty mile round trip twice because the county superintendent was not at home the first time. Requirements for certification were not very demanding as this applicant qualified by writing her name; reading a paragraph from a newspaper; and answering some oral questions in grammar, geography, and arithmetic. With this evidence of ability, she began teaching the Elm Creek school that fall. From territorial days, Kansas required that public school teachers be certified. The sole responsibility of the first state board of education was to certify teachers. However, until the 1930’s, most teachers could find certifying agencies more con­ veniently located than in the capital city where the state board of education met. County superintendents were first given certifi­ cation authority in territorial days09 and continued active in that field until 1937. In 1877 county normal institutes were established,70 replac­ ing senatorial district institutes, which had been conducted by the state superintendent. The institutes, which were closely su­ pervised by the state board of education and constituted the only professional preparation available to many teachers, were estab­ lished to meet the demands of citizens for better qualified ele­ mentary teachers.71 Until 1915 these institutes, held during the summer months, were of four weeks duration, but after that date the county superintendent could meet requirements by providing a program of from five to twenty days. Until 1939, the institute instructors were required to hold certificates issued by the state board of education.72 One of the four examinations administered annually by county superintendents was held at the close of insti­ tute.73 Since 1937, the county institutes have been briefing ses­ sions of from two to five days in length. Another step to insure better preparation of elementary teach­ ers was taken by the Legislature in 1909 by authorizing accredited

89 high schools to establish normal training programs for prospective teachers.74 High school graduates who satisfactorily completed work prescribed by the state board of education became eligible for certification upon passing an examination conducted under supervision of the state board. With the encouragement of a $500 subsidy to each participating high school, the normal training pro­ gram reached its height in 1924 with 349 high schools giving in­ struction in such courses. Not only did the normal training high schools provide a mini­ mum of professional preparation for teachers, but the graduates of these schools helped supply the demand for thousands of be­ ginning teachers. Tenure in rural schools was extremely short. Girls hoped to marry after two or three years of teaching—some made it in one year—and some rural boards adopted policies under which they would not retain teachers more than two or three years regardless of their proficiency. The high school normal training act was not terminated until 1945. In 1943, Dr. F. Floyd Herr was appointed secretary to the state board of education. In that capacity he administered teacher certification and the board’s policies under which the teacher education institutions were accredited. Written standards or guides for state accreditation of institutions were quite brief and general in character until 1950. Although the composition and activities of the state board of education were expanded through successive legislative acts, the general responsibility assigned the board for passing judgment on the quality of work in colleges and universities educating teachers did not change until 1945. State normal schools had been established at Emporia, Pittsburg, and Hays, which later became state teacher colleges. All but Em­ poria eventually dropped the title “teacher,’ but continue to function effectively in the field of teacher education. Dr. Herr became director of teacher certification and accredi­ tation when the present State Department of Public Instruction was created in 1945. He has provided state and national leader­ ship in these fields for twenty-four years and, since 1962, has been responsible for administering elementary and secondary accredita­ tion activities along with the college accreditation function. A teacher supply and demand study under his direction was first made in 1944. These studies spread to the North Central Asso­ ciation of Colleges and Secondary Schools, and later were made a part of the research program of the National Education Associa­ tion. He also played a prominent role in the organization of the

90 The 1967 leader\hip of the Dn,i\IOn of Ac<:reditation and Teather Certification includ('' (\tanding) F. Flo}d Herr, o,..,,,,on Director. John Yu~neron Drrector of the Element.lr} and econdary Accreditation e<:hon, heated) Carl Ileumth, Drre<:tor of the Collq~e Accreditation Section; Glady' hke, Drrector of the Teac.her Certifitahon Section; and Lauren Snow, D1rcctor of the Adult Education Section.

Central tates Departments of Education in 1946 The primar} obJectives of this group, which remained actt\e for a decade, \\ere the establishment of guidelines and cooperative actwn among mid-western states in the development of standards for teacher certification, and the coordination of common interests in federal programs for support of educatwn. The organization also devel­ opcd plans for reciprocit} agreements among the member states. Under the leadership of Stale Superintendent L. W. Brooks, 1945-1949, and Dr. Herr, the Kansas Advisory Council on Educa­ twn was formed m 1947 ,- The council ts a \Oluntar} , inde­ pendent agcnc\ whose members are named h} the organizations represented. These include institutions of higher education in the state that offer programs of four or more years, several groups of professional educators, the SL.ttc Department of Public Inslntc­ tiOn, and the Kans,ls Associattoll of Boards of Educalton. Aftet 1917 state teachers colleges could no longe1 certif} teachers, and the State Department of Public lnstructton became the only cer­ 71 tih mg agenc\ in the state ' Cerltf} ing authont) had been taken ,1\\,1\ from the 105 count) supenntendenl\ .md the 88 first- and '>econd-cl

91 1958, at least thirty-seven states were functioning with councils or advisory committees in the field of certification and teacher education.77 The advisory council has been an important factor in the raising and acceptance of higher standards for teachers, and the improvement of teacher education programs in the colleges and universities.78 The first assignment given the advisory council was to re­ write certificate regulations and develop a set of standards for the evaluation of colleges and universities for purposes of teacher education. An achievement for which the council deserves credit has been the reduction in kinds of certificates held bv Kansas teachers. Between 1944 and 1964, teachers of the state held no less than eighty-nine different kinds of certificates. Today, (1967) only one type of each original standard elementary, secondary, and junior college certificate is issued, with three levels of certifi­ cates for administrators available. These categories do not in­ clude an original one-year certificate issued at each level under some conditions.70 The council also served to coordinate teacher education programs in the colleges and universities. It conducts studies of current educational issues, provides a forum for discus­ sion of college and public school relationships and, in its advisory capacity, facilitates the policy making responsibilities of the De­ partment of Public Instruction. The most difficult period in which to administer certificate regulations was during the years immediately following World

War II. Standards for elementarv* teachers had been drasticallv S lowered as thousands left to engage in war work and other more lucrative occupations. By 1945, any former teacher, upon the application of an employing board, could be certified to teach in elementary schools. Early in the post-war period the movement toward an elementary certification requirement of a baccalaureate degree got under wav. The first step toward this goal was a re­ quirement of twelve hours of college credit. This standard was adopted in 1948, with successive raises in academic requirements until the baccalaureate degree for elementary teachers was reached in 1959. Although colleges, teacher organizations, and other groups concerned about improved instruction, urged higher standards, large segments of the population and those who had been per­ mitted to teach with minimum qualifications, engaged in a mas­ sive arm twisting movement directed against the state certifying agency as attempts were made to obtain certificates for applicants

92 who could not qualify. Typical of this trying period was the county commissioner, who monopolized the time in an educational meeting called by his count)- superintendent. About one-half of his criticism was leveled a* those who were insisting upon better prepared teachers, while the remainder of his observations were to the effect that schools don’t teach as much as in the good old davs. Then there was the board member, who testified in meet- ing about the ability of two teachers under whom he had received instruction as a boy. He reported that one of these teachers had attended college while the other had not, and that the latter “knowed” a lot more than the one with college preparation.

Elementarv0 and Secondarv0 School Accreditation The University of Kansas, the first accrediting agency for Kansas high schools, administered that activity from the 1870’s until 1915 when the task was transferred to the State Department of Education, which was formally created that year by the Legis­ lature.sn The transfer followed criticism from public school offi­ cials, who charged that the University over-emphasized college preparatory work in its accreditation program.M Under rules and regulations adopted by the state board of education, the Depart­ ment was empowered to accredit high schools and designate as standard the elementary schools entitled to such recognition. Under a kind of ex post facto policy the accreditation of high schools was granted for a given year at the close of the term if the school had met the standards. Under this policy neither students or school officials knew if they were working in an accerdited school until the term ended. It was not until 1959 that the accred­ itation status of schools was determined as of June 30 and re­ mained in effect throughout the ensuing year. The practice of classifying accredited high schools as A, B, or C was discontinued that same year. The classification program worked well for a long time but eventually pressures on the Department of Public Instruction made it difficult to lower A ratings which had been held by schools for several years whether or not standards had been maintained. Also, with little emphasis on the breadth and variety of curricular offerings as a factor in accreditation and classification, the A ratings did not provide a satisfactory criterion for judging the quality or quantity of instruction provided. A majority of high schools offered but few courses outside college preparatory programs although until I960 less than one-half of the state’s high school graduates enrolled in college.

93 Under this system of classification it appeared to the layman that a class A high school enrolling 75 students was the same kind of institution as one offering and teaching a comprehensive diver­ sified program. The Department of Education in a neighboring state made a neat approach to solving a similar problem by changing the A, B, and C, classifications to A, AA, and AAA. By using this new terminology no one was offended when A became the lowest classification. Rather than attempt to rejuvenate the classification system that had been used for more than forty years, the Department tackled this problem in 1957 by revising the whole accreditation procedure. Hundreds of administrators, teachers, and college personnel collaborated in revision of the standards which, after two years of work and study, were formally approved by the state board of education in 1959 for use during a two-year transition from the old to the new plans. The revised standards became the basis for accrediting all high schools in the year 1961-62.8* The new standards provided for three categories of high schools, the comprehensive, the standard, and the approved. Dis­ tinctions are both quantitative and qualitative with the old classi­ fications of A, B, and C no longer used. Inasmuch as 1965 legis­ lation requires all high schools to offer and teach a minimum of thirty' units of instruction, as defined by the state superintendent, the “approved” category will not be used after 1966-67. The comprehensive high school must offer and teach a minimum of fifty units of instruction in addition to meeting the highest require­ ments for teacher preparation, and maintain a balanced selection of courses. Standard high schools must meet the same require­ ments but need teach onlv thirty units of work, which is the mini- mum permitted by statute. Schools accredited as comprehensive or standard may receive special recognition as meeting the highest standards of excellence if results of a self-evaluation and a study by a committee of quali­ fied personnel named by the Department indicate the school merits such rating.83 Early in the 1920’s, the state board of education adopted standards for the accreditation of junior high schools, but no classification svstem for them has been used. Until recently, junior high school accreditation practices have been somewhat sketchv under looselv drawn standards. More attention has been given to upgrading these schools since a specialist in the field joined the accreditation section in 1963. Under his direction, a

94 tvvo-vear study has been made of the junior high school, and there has been prepared an evaluation guide, which promises to strengthen this segment of the public school system.v| Standards adopted by the state board of education for ele­ mentary schools, under authorization of the 1915 act, were not used for accreditation purposes, but to stimulate improvement by issuing certificates and door plates to schools in recognition of classification as superior, standard, or approved. For a few years after 1935, these designations were changed to A, B, and C, but aside from change of terminology, the program remained un­ changed until 1945 when a self-rating plan was adopted. In recent years, elementary schools have been accredited under procedures similar to those used in evaluating secondary schools. Standards are published, annual organization reports are required of administrators of elementary schools, and Depart­ ment consultants visit the schools and cooperate with their admin­ istrators in the evaluation process.

Driver Education One of the first driver education courses open to the public was offered at the Young Men’s Christian Association in Boston in 1903. At that time there were only 32,920 automobiles in the United States.So In 1924 the committee on education of the National Conference on Street and Highway Safety first recom­ mended the development of safety education programs for ele- mentarv and secondarv schools. It is not known when the first course in driver education was taught in Kansas, but during the school year 1948-49 there were 39 high schools providing such instruction to 1,989 students. In the fall of 1950 the Department of Public Instruction de­ veloped and distributed the first criteria for approved driver edu­ cation courses to all accredited high schools in the state. The program expanded rapidly when state support for such instruction was provided. The first reimbursement was made in October, 1960. Each year the October distribution of state funds is based on the number of high school students completing credit in ap­ proved courses between July 1 of the previous year and June 30 of the year in which reimbursement is given. A total of 31,670 students enrolled in driver education courses, which were taught in 452 Kansas high schools, during the 1965-66 school year. It is estimated the enrollment in these courses will reach 35,000 during the 1966-67 school year. This activity has

95 been handled by a director attached to the accreditation section since the Department began supervision of driver education in 1950.

Kansas Junior Colleges The enabling law under which junior colleges were estab­ lished was enacted in 1917, and followed quite closely the national pattern for the founding of such institutions.86 Kansas junior colleges were organized as high school extension courses, and continued to operate as such until 1965. These schools were set up to meet the individual needs of citizens of the state; to meet increasing requirements for educated personnel in business and industry; and to eliminate barriers commonly affecting opportunity for post high school education, such as the absence of institutions of higher education in close proximity to persons seeking such education; financial obstacles; and the lack of motivation for con­ tinued schooling.87 These colleges were accredited by the State Department of Public Instruction and operated under the supervision of that agency. Improvement in the quality of junior colleges was sig­ nificant during the 1952-60 period when standards were revised and all two-year institutions conducted evaluation studies. Re­ ports of these activities are on file in the office of the state super­ intendent. Although the adopted philosophy of junior colleges empha­ sized the desirability of a comprehensive curriculum, which in­ cludes college parallel, vocational-technical, and terminal courses, many of them were prevented from implementing their plans be­ cause of limited funds. This problem reached crisis proportions in 1965. A contributing factor was the policy of the board for vocational education, adopted upon recommendation of its execu­ tive officer, to bypass junior colleges in the distribution of new federal funds made available in the 1961 Vocational-Technical Education Act. With junior colleges under supervision of the Department of Public Instruction, which had no jurisdiction over vocational-technical education, the only recourse of these institu­ tions was to file protest with the Legislature. Law suits to test the constitutionality of delegating legislative powers to the vocational board were threatened. The commo­ tion caused by withholding funds from junior colleges ultimately resulted in curtailed jurisdiction of the state board of education over junior colleges, the establishment of a separate board to gov- 96 ern Schilling Technical Institute established in 1965, and reversal of the hoard’s policy so that junior colleges may participate to a greater extent in the distribution of vocational funds from federal sources. In 1964, under the authorization granted by the 1963 Legis­ lature, the education committee of the Kansas Legislative Coun­ cil published the report of a study relating to the role, function, organization, financing, and supervision of the junior colleges in Kansas. Using this report as a blueprint, the Legislature in 1965 enacted a law which provides for a state system of community junior colleges.88 This legislation names the state superintendent as the state authority for junior colleges; separates these schools from high school extension; allows for the expansion of junior college districts; authorizes additional state support for these institutions; provides for the development of a state plan under which new community junior colleges may be established, and creates a state advisory council of eleven members for these insti­ tutions. The new legislation also provides for a director, assistant director, and secretary to constitute a junior college section in the Department of Public Instruction. This section is attached to the division of teacher certification and accreditation. The creation of a state system of community junior colleges has caused these two-year schools to take on new life. Since 1964, three new junior colleges have been organized, and twelve of the sixteen now established have launched building programs in order to expand facilities to accommodate expected enrollment increases.

State Scholarships A fund with which to provide 200 scholarships each vear to college freshmen was established in 1963 to meet a popular de­ mand. The program, which is administered bv the Department of Public Instruction, was recently transferred from direct super­ vision of the state superintendent to the junior college section of the division of teacher certification and accreditation. The state superintendent is empowered to prescribe standards and require­ ments to be met by applicants for benefits, which are awarded on the basis of ability and need. The scholarships are limited to the payment of tuition and fees at the college of the applicant’s choice, but may not exceed $500 annually. The scholarships are renewable for one year if the applicant successfully completes his freshman work. 97 Adult Education This section is headed by a director, who was first employed under a foundation grant for the year 1960-61. The Legislature failed to make an appropriation for continuing the service al­ though there was almost unanimous support for the program from adult education groups, university extension divisions, and other interested organizations. There is a growing demand for skilled personnel to serve business and industry, technological advances call for retraining many adults, and those with minimum school­ ing are becoming aware of the need to improve themselves. With the availability* of federal funds under the Adult Basic Education Act and authorization by the 1965 Legislature to estab­ lish and adult education section, the Department again is in a posi­ tion to provide services in this field. Under a 90-10 percent finance agreement with the United States Office of Education, the director and his assistant divide their time between the adult basic education program and the services launched in 1960 under the foundation grant. Fourteen programs in basic education were conducted dur­ ing 1965-66 with 1100 adults enrolled under the direction of 75 teachers, who received special preparation for the task in training programs authorized by the federal act. Total expenditures for these activities during the first year of operation were $132,000. Projected enrollment for 1966-67 is 2,000 with an anticipated ex­ penditure of $285,000. The adult education'section is in charge of a program under which the Department of Public Instruction meets the needs of adults, who have not graduated from high school, by issuing annually some 1200 certificates of academic equivalency to adults who qualify by making the required score on the General Edu­ cational Development Tests which are administered at centers strategically located in the state. These certificates are accepted in lieu of high school diplomas by most employers, and to meet college entrance requirements by some institutions. This section also administers a law which requires private commercial and trade schools to qualify for permits in order to solicit students in the state. More than 150 such institutions have been granted permits since the law was revised in 1961 to include all categories of private schools operated for profit.

98 chapter iii references

1. State School Code Commission of Kansas, R e p o rt (Topeka: Kansas State Printing Plant, 1928). 2. Otto E. Domian and Robert J. Keller, Comprehensive Educational Sur­ vey of Kansas, 5 Vols. and Summary (Topeka: Research Department, Kansas Legislative Council, 1960). 3. Kansas, Session Laws (1945), ch. 282. 4. Adel F. Throckmorton, The Kansas System of Schools (Topeka: State Department of Public Instruction, 1962), pp. 18-20. 5. Certificate Handbook (Topeka: State Department of Public Instruc­ tion, 1959). 6. Kansas, Session Laws (1949), ch. 400. 7. Ib id ., (1957), ch. 373, secs. 1-4, 7. 8. Ib id ., (1963), ch. 377, sec. 1-7. 9. Ib id ., ch. 342, sec. 1-9. 10. Ib id ., (1965), ch. 417, sec. 1-34. 11. Ib id ., (1963), ch. 393, and (1965), chs. 410, 420. 12. Ib id ., (1965), ch. 402. 13. House Concurrent Resolution No. 505 (Topeka: Kansas Legislature, 1966). 14. Kansas, Session Laws (1945), ch. 282. 15. Interview with F. Floyd Herr, Secretary State Board of Education, 1943-1945, and Director of Teacher Certification and Accreditation, State Department of Public Instruction, 1945-1967, October 19, 1966. 16. Kansas Supreme Court, Kansas Reports, Vol. 194 (1964-65), p. 519, and Vol. 195 (1965), p. 144. 17. Kansas Educational Directory (Topeka: State Department of Public Instruction, 1910-1945). 18. Kansas Schools, Vol. 23, Nos. 2-3, Oetober-November, 1966 (Topeka: The State Department of Public Instruction). 19. Kansas, Session Laws (1965), ch. 415. 20. Midwestern States Educational Information Project, Vol. I, No. 1, Sep­ tember, 1966, and Vol. II, No. 1, February, 1967 (Des Moines: Iowa State Department of Public Instruction). 21. Our Kansas System of Education (Topeka: State Department of Public Instruction, 1960), p. 108. 22. House Concurrent Resolution No. 505 (Topeka: Kansas Legislature, 1966). 23. \V. T. Markham, Unit Program in Social Studies (Topeka: State De­ partment of Public Instruction, 1934). 24. Peter MacVicar, Eighth Annual Report (Topeka: State Department of Public Instruction, 1868), pp. 24-25. 25. Isaac T. Goodnow, Sixth Annual Report (Topeka: State Department of Public Instruction, 1866), p. 8. 26. Peter MacVicar, Ninth Annual Report (Topeka: State Department of Public Instruction, 1869), p. 5. 27. Kansas, Session Laws (1897), ch. 179. 99 28. C. (). Wright, “The Historical Background of the 1937 School Legis­ lation,” The Kansas Teacher, Vol. 45 ( May, 1937), p. 13. 29. Kansas, Session Laws (1913), ch. 288. 30. Ib id ., ch. 288, sec. 13. 31. George Frey, “Textbook Costs,” The Kansas Teacher (January, 1955), p. 36. 32. Ib id ., “Troublesome Adoption,” (December, 19.54), p. 24. 33. Kansas, Session Laics (1957), ch. 373, secs. 1-4, 7. 34. Ib id . 35. Kansas, Session Laws (1876), ch. 122, art. 8. 36. Adel F. Throckmorton, Education in Kansas (Topeka: State Depart­ ment of Public Instruction, 1952), p. 43. 37. Ib id ., p. 54. 38. Kansas, Session Laws (1949), ch. 400. 39. Ib id ., (1951), ch. 424. 40. Ib id ., (1953), ch. 338, sec. 1. 41. Marguerite Thorsell, “The Education of Mentally Retarded Children in Sparsely Populated Rural Areas,” Cooperative Research Project No. 055 (Topeka: State Department of Public Instruction, 1963). 42. Adel F. Throckmorton, Education in Kansas (Topeka: State Depart­ ment of Public Instruction, 1958), p. 13. 43. Kansas, Session Laws (1959), ch. 420. 44. Adel F. Throckmorton, Education in Kansas (Topeka: State Depart­ ment of Public Instruction, 1952), p. 61. 45. Ib id ., (1954), pp. 28-31. 46. W. C. Kampschroeder, School Building Survey Report (Topeka: State Department of Public Instruction, 1952). 47. Adel F. Throckmorton, The Kansas Systems of Schools (Topeka: State Department of Public Instruction, 1962), pp. 18-20. 48. Carl B. Althaus, A Quest for Quality (Topeka: State Department of Public Instruction, 1963), pp. 41-57. 49. Ib id ., p. 51. 50. Carl B. Althaus, An Emphasis on Earnings (Topeka: State Department of Public Instruction, 1964). 51. Kansas, Session Laws ( 1965), ch. 402. 52. Kansas Schools, Vol. 23, No. 6, February, 1967 (Topeka: The State Department of Public Instruction), p. 3. 53. Peter NlacVicar, Ninth Annual Report (Topeka: State Department of Public Instruction, 1869), p. 6. 54. Edmund Stanley, Tenth Biennial Report (Topeka: State Department of Public Instruction, 1896). 55. Kansas, Session Laws (1876) ch. 122, arts, x and xi. 56. Frank Nelson, Twelfth Biennial Report (Topeka: State Department of Public Instruction), 1900.

100 57. Kansas, Session Laws (1886), ch. 147. 58. Ib id ., (1923), ch. 187. 59. Ib id ., (1911), ch. 262. 60. Ib id ., (1915), ch. 311, secs. 1-11. 61. Ib id ., (1901), ch. 307, secs. 1-10. 62. Ib id ., (1945), ch. 291. 63. The Topeka Daily Capital, Tuesday, February 18, 1947. 64. Ib id ., Friday, February 21, 1947. 65. School D istrict Reorganization, Publication No. 150 (Topeka: Research Department, Kansas Legislative Council, 1947), p. 1. 66. Kansas, Session Laics (1963), ch. 393. 67. Ib id ., ( 1965), chs. 410, 420. 68. Kansas Supreme Court, Kansas Reports, Vol. 194 ( 1964-65), p. 519, and Vol. 195 (1 9 6 5 ),p . 144. 69. Kansas, Territorial Laws ( 1858), ch. 8, sec. 26. 70. Kansas, Session Laics (1877), ch. 136. 71. Ib id ., sec. 1. 72. Kansas, Session Laws ( 1939), ch. 253, sec. 2. 73. Ib id ., (1885), ch. 175, sec. 2. 74. Ib id ., (1909), ch. 212. 75. History of the Kansas Advisory Council on Teacher Education (T o­ peka: State Department of Public Instruction, 1954). 76. Kansas, Session Laws ( 1947), ch. 362, sec. 1. 77. L. Eileen Heinen, “An Analysis of the Kansas Advisory Council on Teacher Education” (Unpublished Master’s Dissertation, Kansas State Teachers College, Emporia, 1965) pp. 3-5. 78. Ib id ., Chs. Ill and V. 79. Certificate Handbook (Topeka: State Department of Public Instruc­ tion, 1966). 80. Kansas, Session Laws (1915), ch. 296, secs. 8,10. 81. John L. Eberhardt, “Kansas Department of Public Instruction,” Got>- ernmental Research Series No. 14 (Lawrence: University of Kansas Publication, 1955), pp. 140-141. 82. Kansas Secondary School Handbook (Topeka: State Department of Public Instruction, 1961). 83. Manual for Cooperative Evaluation of Kansas High Schools (Topeka: State Department of Public Instruction, 1965). 84. Evaluation Guide for the Junior High Schools of Kansas (Topeka: State Department of Public Instruction, 1966). 85. Driver Education in Kansas Secondary Schools (Topeka: State De­ partment of Public Instruction, 1963), p. 5. 86. Kansas, Session Laws (1917), sec. 1. 87. Community Junior Colleges (Topeka: Kansas Legislative Council, 1964), p. 29.

101 chapter iv federal-state relations

". . . more than sixh years later the hnrse-and·hugg) t) pt• of ch tnct '' a"

~ l os t Kansa11s h:l\ e dramaticall) changed their attitud(' t( '' ard f('dt·ral support of ed11cation since 1960. In spik of the ua tiou-wide tensiou accompau~ ing R ussia'~ launchiug of the first sputnik, it '' as '' ith extreme diffieult~ that Ka11sa~ ]cgi lath )fad ers \\ ere persuaded to pro' idt flmds 111 1959 '' ith '' hich t 1 at h fl'd eral III O H e~ appropriated under the :'\ ational I)( feu\( 1 du­ catioll Act of 1958. Although this step \\a') taken b) Congr to imprm e educational opportunit) throu!!hout th<: nati 1 r I 820,000 of state mone) \\as appropriat<: d that ) <: ar t ) mat h 50-50 hasi the S50,000 of federal funds that had 1 e 1 a I to Ka11sas for the admiuistration and supcn rsi r f T tl \\ hich prO\ ided schools \\ ith mone~ f r th<: pur h f tiona} equipment. Among organizations that have consistently opposed federal support of education are chambers of commerce—that is until the Kansas Legislature in 1963 authorized the establishment of area-vocational schools financed in part with federal funds pro­ vided by Congress under Public Law 88-210, the Vocational Edu­ cation Act of 1963. In the face of their historic opposition to accepting federal money for schools there developed among these organizations a spirited competition to locate in their communities the twenty area-vocational schools originally planned for the state. The scramble among chambers of commerce to bring federal money to their own cities was amusing to educators who long had sought support from Washington for their educational programs. In fact manv of these groups almost literally climbed walls to obtain benefits that would accrue with the establishment of fed­ erally subsidized area-vocational schools in their midst. Then, with Congressional enactment of Public Law 89-10, the Elementary-Secondary Act of 1965, the traditional Kansas opposition to federal support of education faded away although a small group of law makers, earlv in 1966, unsuccessfully sought legislation that would have deprived Kansas schools of such aid. Kansas has been receiving federal funds provided under Titles III, V, and X, of the National Defense Education Act since Congress first made appropriations under that authorization. In the beginning an insufficient number of projects were received from schools to use all of the monev allocated to Kansas under Title III. Another bit of evidence that attitudes have changed was revealed when 1965-66 applications for the funds exceeded the Kansas allocation by more than 25%. All guidance and counseling activities of the Department of Public Instruction, with the exception of the salary of the director of the section administering these programs, are wholly supported

bv0 federal funds under Title V of the National Defense Education Act and, with funds provided under Title X of that act, much has been done to upgrade statistical services of the Department. This includes the development of an accounting system for schools and partial financing of studies that led to enactment of the 1965 school foundation finance act. A civil defense adult education program also is wholly supported with monev from federal sources as are activities under Titles I and II of the Elementary-Secondarv Education Act of 1965. School lunch programs have been fed­ erally subsidized since 1946. It is also the policy of the Depart­ ment to make full use of Title V funds under Public Law 89-10 103 to upgrade its services. Mos t Department expansion since 1945 has been federally financed and at the present time approximately one-half of the Department's salary budget is derived from fed­ eral sources. The philosophy of the Kansas State Department of Public In­ struction for many years has been to use whatever funds become available for the support of education. However, funds from any and all sources must have state legislative approval before they can be expended. Some federal funds, otherwise available for educational purposes, each year remain unused for want of such legislative action. A more serious handicap is the Congressional policy of appropriating previously authorized funds late in the fi scal year in which they are to be used. These delays make ad­ vance planning all but impossible at both state and local levels and place undue burdens on state departments of education and the schools they serve. Another major concern of state education agencies is the burgeoning number of administrative details pre­ scribed b y the federal agencies through which state departments of education must work. The Kansas Department of Public In­ struction recognizes the need for an accounting to Congress but much of the red tape injected by federal agencies defies justifica­ tion. Two situations illustrate this point:

The 1967 Headquarters taH of the State uperintendent of Pub1ic In truction consists of Carl B. Althaus, Coordinator of Iowa Project, Arlin R Morgan. Director of Informa­ tion; U. H. Budd, Coordinator of Federal Programs, Clifford M henlc, Administrati"e Aide; '"'· C. Kampschroeder, tate upenntendent, Fa) Kamp chroeder, Director of F iscal ~fanagement ; and ~1urle ~L Ha)den, A.s.si>tant tate uperintendent.

104 All federal funds administered by the state must be expended under procedures established by state law, one provision of which is that employees who use their own automobiles in state author­ ized travel may be reimbursed, except when they travel in excess of 18,000 miles annually. Such persons are required to use state- owned vehicles. Some members of the civil defense adult educa­ tion section of the Department, which is a 100% federally financed activity, travel in excess of 18,000 miles annually but a federal regulation prohibits the use of civil defense education funds for the purchase of automobiles. In order to resolve this impasse between Kansas law and federal regulations it is necessary to purchase automobiles from state funds and then make a charge against the federal money in this activity in order to reimburse the state at the allowed mileage rate for each mile traveled. These fiscal gymnastics multiply accounting problems in the De­ partment of Public Instruction besides doubling travel costs from federal funds which could be reduced about 50% by allowing the state to pay for the automobiles used in this activity from federal funds. A second horrible example involves the administration of federal funds used for upgrading the Department of Public In­ struction under Title V of Public Law 89-10. Federal regula­ tions require that separate projects for each improvement con­ templated be submitted to the United States Office of Education rather than develop one over-all plan to reach the desired goals, as is provided for the administration of many other federally supported programs. Writing up six or eight separate projects for the improvement of one department of education, together with separate accounting and evaluation for each involves endless, and in the opinion of many state officials, unnecessary clerical, statistical, and managerial work. Another basic issue in federal-state relationships is the re­ quirement that the state, in addition to maintaining an accounting system of its own as prescribed by state law, must account for the expenditure of federal funds under another system federally prescribed. This means that state agencies must maintain two accounting systems which often are not compatible. Kansas De­ partment of Education officials note that most personnel with whom they cooperate in the United States Office of Education understand these troublesome issues and are sympathetic with the viewpoints of state education agencies. However, there ap- 105 pears to he a lack of understanding, or perhaps acceptance, of the fact that education is a state function at policy making levels in the Office of Education and among others who help develop fed­ eral legislation affecting education. Problems surrounding the use of federal funds for education are attributable to a number of factors. There has been a suc­ cession of United States Commissioners of Education who have had little or no first hand experience in public school administra­ tion. There also is growing evidence that staff members with such experience are relegated to secondary positions in the Office of Education with policy making left in the hands of persons, compe­ tent in their own fields of business, industry, higher education, and in other professions, but inexperienced in public school admin­ istration. The Kansas Department of Public Instruction is in full accord with the principle of federal support for education but believes that the categorical aid approach has gotten out of hand at many points. As the federal government increases its support of edu­ cation all of its agencies should recognize the role of the states in this field and trust state education agencies to be as effective and competent to handle funds from federal sources as in the admin­ istration of state funds. State department of education officials look with a critical eye upon activities authorized under Title III of Public Law 89-10 because these programs which involve local school districts are administered directly by the United States Office of Education in violation of the philosophy that education is a state function. Department officials also have reservations about the regional educational laboratories established under Title IV of the Ele­ mentary-Secondary Education Act of 1965, believing the stated objectives of these laboratories could be more effectively attained by state departments of education if comparable funds were made available to them and, at the same time, be consistent with the principle of state control of education.

106 Tlw gro~' th and strength of c•du<:ation in Kansa~ i\ not on I) depicted b) the ~tate· Department ~taff but is also reflected 111 the <:ontinu111g tenure of local \Chool adnmm­ trator\ and \laff. uch an C\amplt 1\ \ho'' n b) the \IX \Upcnntt.'lldcnb "ho rcpre­ \Cntecl ·W \car\ of Jeader~h1p in the rurcka \chools "hen tht•\ ' ' ere reco~nized at tht annual 1-..i'' an is tudent H onor' Banquet 111 ~ { arch, 196i ( harle\ \I Campbell, tlu.: pre\tnt \Upenntendent, a\sumc•d tim pO\ItlOn 111 1965 Tom \lonnmger held thi\ po't from l95Cl to 1965, and 1' no~' \Upcnntc·ndent of Tong \Upt•rmtendcnt of the La\Hencc· t n1fic•d School Oi,trict Prc\cnt State "iupenntcndent \\ C 1-.. amp,duoeder '"as \Upcr­ mtcndc•nt at Eureka from 19:17 to 1951. \ V. \1 0\tcnhc•rg, '1<:e-pre\1dent of the at1onal Bank of America 111 Salina, \en cd from 19:31 to H).J7. I le 1\ no" retired from \chool administration, but <:onllnuc' to further hi\ educational mtere~ts and c·on­

107 appendix

Kinds of School Districts in 1963 and Number of Each Kind of District Number Organized Cities of the First Class 13 Cities of the Second Class 84 Unified 5 Common School, Elementary and High 146 Common School, Elementary Only 753 Common School, Grades 1-9 2 Common School, One Teacher 330 County Board of Education 1 Fort Leavenworth Board 1 Johnson County Special 11 Sedgwick Coun ty Special 8 Rural High School, Regular 267 Rural High School, Russell Plan 12 Rural High School, Grades 7-12 3 Sedgwick County Special High School 1 Community High School 20 Closed Common School Districts 169 Closed Rural High School Districts 14

Kinds of School Districts in 1967 and Number of Each Kind of District Number Organized Unified Under Special Legislation 2 Greeley County Unit 1 Unified Under Acts of 1963 and 196.5 303 ..... on-Unified Districts. Rural High School I Consolidated Unified D is trict 1 Common School 24 Second Class Cities 1

Total Districts in Kansas 3.39

108 State Textbook Agencies

Year Name of Agency Function 1897 School Textbook Commission0 Adopt textbooks, contract with pub­ lishers, set prices on textbooks 1913 School Book Commision0 Same as in 1897 and administer state printing of textbooks 1937 State Board of Education0 Same as in 1913 ( Professional) 1945 State Board of Education Same as in 1913 (L ay ) 1957 Textbook Review Committee0 ° Publish lists of suitable textbooks (Adoptions by local school districts) "State Superintendent ex-officio chairman. 00Appointed by State Superintendent with State Board of Education approval.

Expansion of Special Education Programs 1965-66 to 1966-67 Program or 1965 1966 Specialist 1966 1967 Directors of Special Education 9 11 School Psychologists 54 73 Social Workers 3 6 Speech 126 127 Hearing 5 10 Visually Impaired 8 9 Physically Handicapped 6 7 Orthopedically Handicapped 11 12 Homebound and Hospital (Full Time) 13 10 Educable Mentally Retarded 241 260 21 28 Trainable Mentally* Retarded (lifted 20 21 Socially and Emotionally Maladjusted 22 30 Neurologically Impaired 1 2 Learning Disabilities 0 9

Total 540 615

109 Teacher Certification Progress and Dates of Legislative Action

Year Action Taken 1858 County Superintendents authorized to certify teachers 1863 State Normal Schools authorized to certify teachers who meet re­ quirements set by the institution 1873 State Board of Education created and authorized to certify teachers upon examination 1876 Boards of Education of cities of the first and second class authorized to certify teachers 1893 State Board of Education authorized to substitute credit from ap­ proved colleges for examination in those subjects as qualification for certification of teachers 1899 Graduates of the University of Kansas and other accredited institu- * tions taking required courses could qualify to be certified by the State Board of Education 1909 State Board of Education authorized to issue certificates to high school graduates completing high school normal training courses and passing a state examination 1915 Legislature set Bachelor degree requirement for high school teachers 1937 The State Board of Education and the three State Teachers Colleges given exclusive authority to certify teachers 1947 The State Superintendent of Public Instruction given exclusive au­ thority to certify teachers under rules and regulations approved by the State Board of Education and to graduates of Teachers Colleges with institutional recommendation

Compulsory Attendance Laws

L a ic s of Ages Applicable Alternate Requirements 1874, chap. 123 8 to 14 None 1903, chap. 123 8 to 15 Complete 8th Grade 1919, chap. 272 8 to 16 Complete 8th Grade 1923, chap. 182 7 to 16 Complete 8th Grade 1965, chap. 409 7 to 16 None

110 Qualifications for Membership on State Board of Education

In appointing members to serve on the State Board of Education the Governor:

Is prohibited from appointing anyone who is engaged in school work as teacher, principal, or superintendent.

Must appoint members of the two major political parties with not more than four at the same time from the same party.

May not appoint more than three members who are residents of terri­ tory governed by boards of education of school districts in cities of the first or second class.

Must appoint at least one member from each Congressional District.

May not appoint any of the seven members to serve more than two consecutive terms of three years each.

— Laws of Katisas, 1945, Chapter 282, Section 19.

Qualifications for State Superintendent of Public Instruction

At the time of filing candidates for the office of State Superintendent of Public Instruction must:

Hold the highest type of teachers certificate prescribed by law.

Be a resident of Kansas for at least five years immediately preceding.

Be a graduate of an accredited college or university with at least thirty hours of post-graduate credit.

Have at least ten years teaching or administrative experience, of which at least five years shall have been in the public school systems of Kansas and active in such work within two years prior to the date of filing for such office. — Laws of Kansas, 1945 Chapter 282, Section 5.

Ill Territorial Superintendents Noteware, James H. March, 1858, to October 4, 1858. Greer, Samuel Wiley. October, 1858, to January, 1861. Douglass, John C. January, 1861, to February, 1861.

State Superintendents of Public Instruction Griffith, William Riley, Marmaton. February, 1861, to February 12, 1862. Thorp, Simeon Montgomery, Lawrence. Appointed vice Griffith; served March 24, 1862, to January, 1863. Goodnow, Issac T., Manhattan. January, 1863, to January, 1867. NlacVicar, Peter, Topeka. January, 1867, to January, 1871. McCarty, Hugh DeFrance, Leavenworth. January, 1871, to January, 1875. Fraser, John, Lawrence. January, 1875, to January, 1877. Lemmon, Allen Bosley, Winfield. January, 1877, to January, 1881. Speer, Henry Clay, Junction City. January, 1881, to January, 1885. Lawhead, Joseph Hadden, Fort Scott. January, 1885, to January, 1889. Winans, George Wesley, Junction City. January, 1889, to January, 1893. Gaines, Henry Newton, Salina. January, 1893, to January, 1895. Stanley, Edmund, Lawrence. January, 1895, to January, 1897. Stryker, William, Great Bend. January, 1897, to January, 1899. Nelson, Frank, Lindsborg. January, 1899, to January, 1903. Dayhoff, Insley L., Hutchinson. January, 1903, to January, 1907. Fairchild, Edward T., Ellsworth. January, 1907, to November, 1912 (resigned). Ross, Wilbert Davidson, Oskaloosa. Appointed November 19, 1912; elected 1912, 1914 and 1916, to December 1918. Wooster, Miss L. E., Salina. January, 1919, to January, 1923. Nliley, Jess W., Girard. January, 1923, to January, 1927. Allen, George A., Jr., Frankfort. January, 1927, to December 12, 1932 (deceased). Markham, W. T., Yates Center. December 12, 1932, appointed vice Allen, elected 1934, 1936, to December 1938. NlcClenny, George L., Topeka. January, 1939, to January, 1945. Brooks, L. W., Wichita. January, 1945, to January, 1949. Throckmorton, Adel F., Wichita. January, 1949, to August 31, 1966. Kampschroeder, W. C., Topeka. Appointed September 1, 1966; elected November 1966, to serve until January 1969.

112 The Directory of the Kansas State Department of Public Instruction (as of June 1, 1967)

State Superintendent Personnel Manager VV. C. Kampschroeder Paul Reed Assistant State Superintendent Coordinator of Federal Programs Murle M. Hayden U. H. Budd Administrative Aide Fiscal Management Clifford M. Shenk Mrs. Fay Kampschroeder, Director Public Information Edward Marcotte, Chief Accountant Arlin R. Morgan, Director Coordinator of Iowa Project Paul Pickerill, Graphic Artist Carl B. Althaus

Division of School Administration Division of Instructional Services Lawrence R. Simpson, Director George L. Clcland, Director School Facilities Section Curriculum Section, C. C. Rice, Director G. W. Reida Director CURRICULUM CONSULTANTS L. M. Foster, Consultant James Stultz, Economics Finance Section Fay Kampschroeder, Director Lois Caffyn, English Leonard Moore, Assistant Director Harold Caldwell, Audio Visual Thomas Dempsey, Auditor Lucile Asher, Mathematics Lawrence Hartwell, Auditor Carl Haney, Physical Education Albert M. Scheibner, Auditor Charles Nicholson, Foreign Language Russell Noland, Auditor Claude E. Spencer, Social Science Homer Hieronymus, Auditor Eldon Stoier, Reading School Lunch Section Menno Stucky, Industrial Arts Ruby Scholz, Director Janet Hinther, Supervisor George R. Neaderhiser, Music Ogla Quackenbush, Supervisor Jan Holman, Science Carolyn Sasse, Supervisor Gary Kroeger, Art Statistical Services Section Carl W. Hempstead, Library T. William Goodwin, Director Bill L. Fowler, Accountant Special Education Section Kenneth E. Rice, Accountant James Marshall, Director Marjorie Miller, Statistician William Fujikawa, Consultant Velma Perkins, Ed. Cert. Specialist Nicholas W. Bankson, Consultant Civil Defense Adult Education Section Clara Robertson, Consultant Denzell Ekey, Director Marguerite Thorsell, Consultant Gerald Christensen, Consultant Donald Jernberg, Consultant Lawrence E. Sayler, Consultant Gerold Stewart, Consultant School Unification Section George D. Keith, Director Martha A. Claflin, Consultant Harry Dean, Jr., Consultant Kenneth Armstrong, Consultant Paul Dick, Consultant Guidance and Pupil Personnel Section Division of Accreditation and Teacher Willard Foster, Director Certification Lyle Welch, Consultant F. Floyd Herr, Director Beulah Brown, Consultant College Accreditation Section Title I—P. L. 89-10 Carl L. Heinrich, Director Eileen Heinen, Assistant Henry Parker, Director State Scholarship Program Carroll Cobble, Consultant Kenneth Ekdahl, Consultant Philip Thomas, Consultant Student Teaching Clyde Ahlstrom, Consultant Solomon Humbargar, Consultant Adult Education Section Title II—P. L. 89-10 Lauren Snow, Director Warren Bell, Director Willard Lee, Consultant Mona Alexander, Consultant Teacher Certification Section Gladys Iske, Director Edna Umholtz, Assistant State Board of Education Wilma Clarke, Assistant Donald E. Bonjour, Lenexa, Chairman Elementary and Secondary Accreditation Section John H. Vigneron, Director Mrs. Ailene Beall, Clay Center Jay J. Scott, Assistant (Director of Driver Mrs. Maxine Scoville, Kansas City Education) Otto A. Epp, Tribune Maurice E. Cook, Assistant C. W. Rice, Assistant Floyd Souders, Cheney Leo Griffing, Assistant William A. Donelan, Colby Eugene Werner, Assistant John Berns, Peabody 113 index

Accreditation, 24, 28, 30, 89, 90, 93, 94, Certification, Teacher, 11, 14, 27, 28, 40, 113 89, 110, 113 Admm1strat1ve Aid, 104, 113 Christensen, Gerald, 113 Admm1strat1ve Services, 78, 113 Civil Defense Adult Education, 82, 104, Adult Education, 47, 82, 98, 113 113 Advisory Council on Education, 91 Claflin, Martha A., 113 Ahlstrom, Clyde, 113 Clarke, Wilma, 113 Alexander, Mona, 113 Classification, H1 gh School, 93 Allen, George A., Jr., 33, 36, 112 Cleland, George, 49, 50, 65, 66, 113 Althaus, Carl, 50, 60, 62, 81, 103, 104, 113 Clerical Services, 24 Annual 1eeting, 11 Cobble, Carroll, 113 Annual Reports, 24 College Accreditation, 24, 113 Applegate, Florence, 50 Community Junior Colleges, 26, 97 113 Approved lllgh Schools, 94 Comprehensive Educational Survey 39 Area Vocational Schools, 7, 40 Comprehensive H1gh Schools, 94 Armstrong, Kenneth, 113 Compulsory Attendance, 9, 110 Asher, Lucile, 73, 113 Consolidation, 39 Assistant State Superintendent, 24, 104, Constitution, 39, 12 113 Constitutional Amendment, 28, 36, 40, 48, Association of Educational Secretaries, 60 63 Bankson, N1cholas, 113 Consultanl-;, Cumculurn. 73, 113 Barker, Dorothy, 50 Cook, Maunce 49, 51, 113 Beal, 1rs Ailene, 43, 113 Coordmator Fweral Programs, 104, 113 Bell, Warren, 66, 113 County High School Districts, 84 Berns, John, 43, 113 Count} lnsbtute:s 24 Board Members, 11 Count} Superintendent, 11 , 12, 26, 27 Boards of Education, 27 Course of Study, 25, 28, 32, 67 Bond Clerk, 24 Cranwell, Wilma, 50 Bonds, 36 Curriculum Section, The 71 113 Bonjour, Donald E ., 43, 113 Dayhoff, Insley L., 23, 112 Bowers, PhylliS, 50 Daughtery Della, 50 Brewer, Jean, 50 Dean, Harry Jr 113 Brooks, L. W ., 6, 41, 48, 86, 91, 112 Dempse}·, Thomas, 113 Brown, Beulah, 113 Department of Administration, 56 Brown, Mmter, 60 Dep... rtrnent of Education, 7, 'l:i Budd, U H , 103, 104, 113 Department of Public Instruction, 7, 38, Caffyn, Lo1s, 50, 113 44, 47, 113 Caldwell, Harold, 2, 50, 65, 73, 113 Depopulated DIStricts, 85 Campbell, Charles M., 107 Dick, Paul 113 Carle, Rose, 60 Duector} S+.~te Depllrtment of Public Central States Departments of Education, Instrucb n 113 90 District Consolidation, 39

114 District Organization, 11, 24, 27, 84 Guidance and Counseling, 76, 103, 113 District Reorganization, 40, 85, 87 Haney, Carl, 50, 113 District, School, 11, 108 Hare, May, 32 District Unification, 26, 82, 113 Harrington, Freda, 50 Division of Administrative Services, 78, Hartwell, Lawrence, 113 113 Hartzler, Nannie, 83 Division of Certification and Accreditation, Hayden, Murle, 50, 103, 104, 113 113 Headquarters Staff, 104 Division of Instructional Services, 66, 113 Health and Physical Education, 28, 72 Domian, Dr. Otto, 39 Heinen, Eileen, 50, 113 Donelan, William A., 43, 113 Heinrich, Carl, 50, 91, 113 Douglass, John C., 13, 14, 112 Hempstead, Carl W., 73, 113 Driver Education, 47, 95 Herr, F. Floyd, 49, 51, 65, 90, 91, 113 Durham, lone, 50 Hieronymus, Homer, 113 Eberhardt, John L., 15 High School Accreditation, 28, 30, 93, 113 Educational Amendment, 28, 36, 40, 48, High School Activities Association, 62 63 High School Classification, 93 Educational Revolution, 7 High School Districts, 84, 85 Educational Secretary, The, 59 High School Supervisors, 28 Educational Survey, 39 Hinther, Janet, 49, 51, 113 Education Building, 2, 54 Holman, Jan, 73, 113 Ekdahl, Kenneth, 50, 113 Honey, Rosella, 89 Ekey, Denzell, 65, 78, 113 Huffaker, T. S., 8 Elementary Accreditation, 93, 113 Humbargar, Solomon, 113 Elementary School Supervisors, 28 Industrial Education, 30, 73 Elm Creek Settlement, 89 Institutes, 24, 89 Epp, Otto A., 43, 113 Instructional Services, 66, 113 Fairchild, Edward T., 23 Internal Organization, 63 Faulk, Phyllis, 50 Inventory, School Facilities, 79 Federal-State Relations, 102 Iowa Project, 61, 113 Finance Council, 56 Iske, Gladys, 49, 51, 91, 113 Finance Section, 79, 113 Jameson, Julia, 50 First Free School, 8 Jemberg, Donald, 113 Fiscal Management, 113 Johnson, W. H., 30 Foster, L. M., 113 Joint School Code Commission, 39 Foster, Willard, 50, 66, 113 Junior Colleges, 26, 40, 96 Foundation Finance Act, 7, 32, 40, 81 Junior High Schools, 26, 94 Fowler, Bill, 113 Kampschroeder, Fay, 48, 51, 78, 79, 82, Fraser, John Lawrence, 18 103, 104, 113 Frey, George, 39 Kampschroeder, W. C., 1, 3, 48, 49, 51, Fujikawa, William, 113 53, 55, 103, 104, 107, 112, 113 Caines, Henry Newton, 21, 112 Kansas Advisory Council on Education, 91 Gatchett, Margaret, 60 Kansas Education Building, 2, 54 Gillespie, Jennie, 49, 51 Kansas Junior Colleges, 26, 40, 96 Goodnow, Isaac T., 17, 24, 68, 112 Kansas-Nebraska Act, 9, 14 Goodwin, William, 50, 78, 113 Kansas State High School Activities Asso­ Greer, Samuel Wiley, 13, 14, 112 ciation, 62 Griffing, Leo, 113 Kansas State Teachers Association, 24, 35, Griffith, William Wiley, 14, 16, 112 58 115 Kansas State Teachers College, Emporia, Quakenbush, Olga, 113 77 Qualifications, State Board of Education, Kansas Supreme Court, 27, 36, 48, 86, 87, 111 88 Qualifications, State Superintendent, 111 Kaw Mission, 8 Reed, Paul, 113 Keith, George, 78, 113 Reedy, Oris, 50 Keller, Dr. Robert J., 39 Reida, George, 50, 64, 78, 113 Knox, Carl, 107 Reorganization, District, 40, 85, 87 (See Kroeger, Cary, 113 Consolidation and Unification) Lanter, Dorothy, 50 Rice, C. C., 50, 66, 113 Lawhead, Joseph Hadden, 20 Rice, C. W., 50, 113 Lee, Willard, 113 Rice, Kenneth E., 113 Lemmon, Allen Bosley, 15, 19, 112 Ritter, Mary, 60 Libraries, 27, 31, 72 Robertson, Clara, 50, 65, 113 Long, Donna, 50 Ross, W. D., 27, 28, 29, 30, 35, 39, 112 MacVicar, Peter, 9, 10, 17, 67, 68, 82, 112 Rural High Schools, 27, 85 Nlarcotte, Edward, 113 Salary, State Superintendent, 25 Markham, W. T., 32, 34, 35, 44, 67, 112 Sasse, Carolyn, 113 Marshall, James, 49, 51, 65, 66, 113 Sayler, Lawrence, 50, 113 McCarty, Hugh DeFrance, 9, 18, 112 Scheibner, Albert M., 113 McClenny, George, 35, 44, 112 Schilling Technical Institute, 58 Mid-Continent Regional Laboratory, 58 Scholarships, 40, 97, 113 Middle Period, 26 Scholz, Ruby, 49, 51, 65, 78, 113 Miley, Jess W., 31, 33, 112 School Aid, 32, 80 Miller, Marjorie, 50, 113 School Board, 11 Monninger, Tom, 107 School Book Commission, 46, 69 Moore, Leonard, 113 School Code Commissions, 39 Morgan, Arlin R., 2, 104, 113 School Districts, 11, 26, 39, 82, 108 National Defense Education Act, 73, 76 School District Unification, 26, 82 Neaderhiser, George R., 113 School Facilities Inventory, 79 Nelson, Frank, 22, 30 School Facilities Services, 79, 113 Nicholson, Charles, 113 School Finance, 79, 80 Noland, Russell, 113 School Foundation Finance Act, 7, 32, 40, Normal Institutes, 89 81 Normal Schools, 15 School Fund Commission, 6, 10, 12, 58 Normal Training High Schools, 24, 89 Schoolhouse, 9, 11, 83, 86 Noteware, James H., 13, 14, 112 School Lands, 10, 24 Orr, Carey, 86 School Lunch and Milk Programs, 40, 80, Ostenberg, W. M., 107 113 Parker, Henry, 66, 113 School Secretary, The, 59 Perkins, Velma, 113 School Textbook Commission, 6, 10, 25, Permanent School Fund, 10 68 Personnel Manager, 113 School Unification Section, 113 Phillips, Clyde U., 107 Scott, Jay J., 50, 113 Physical Education, 28, 72 Scoville, Mrs. Maxine, 43, 113 Pickerill, Paul R., 2, 113 Secondary School Accreditation, 28, 30, 93, Public Information, 113 113 Public Law 89-10, 61, 77, 103, 105 Secretary State Board of Education, 28, 90 Pupil-Teacher Ratios, 67 Senatorial District Institutes, 89

116 Shenk, Clifford M., 103, 104, 113 Stryker, William, 22, 112 Simpson, Lawrence, 50, 65, 78, 113 Stuckey, Menno, 113 Small Schools, 87 Stultz, James, 113 Snow, Lauren, 91, 113 Superintendents, State, 112 Social Studies, 32, 35 Superintendents, Territorial, 112 Social Security, 7, 35 Supervisors, 28 Souders, Floyd, 43, 113 Supreme Court, 27, 36, 48, 86, 87, 88 Special Education, 40, 74, 109, 113 Swan, Mildred, 50 Speer, Henry Clay, 19, 112 Teacher, 11 Spencer, Claude E., 113 Teacher Certification, 11, 14, 27, 28, 40, Standard High Schools, 94 89, 110, 113 Stanley, Edmund Lawrence, 21, 112 Teacher Institutes, 24, 89 State Board of Education, 10, 12, 14, 15, Teacher Retirement, 7, 28, 35, 57 25, 27, 42, 43, 44, 62, 70, 111, 113 Teel, Ruth, 50 State Board for Vocational Education, 46 Tenure, Department Personnel, 48 State Department of Administration, 56 Territorial Legislature, 11 State Department of Education, 7, 27 Territorial Superintendents, 14, 112: State Department of Public Instruction, 7, Douglass, John C., 13; Greer, Samuel 38, 40, 44, 47, 113 Wiley, 13; Noteware, James H., 13 State Scholarships, 40, 97, 113 Testing Program, 77 State Superintendent, The, 10, 12, 15, 24, Textbook Agencies, 109 25, 27, 44, 57, 88, 111, 113 Textbook Review Committee, 70 State Superintendents, 112 (See Territorial Textbooks, 10, 12, 24, 40, 46, 68 Superintendents): Allen, George A., Jr., Thomas, Philip, 113 33, 36; Brooks, L. W., 6, 41, 48, 86, 91; Thorp, Simeon M., 16, 112 Dayhoff, Insley L., 23; Fairchild, Ed­ Thorsell, Marguerite, 50, 75, 113 ward T., 23; Fraser, John Lawrence, Throckmorton, Adel F., 1, 3, 6, 45, 48, 53, 18; Gaines, Henry Newton, 21; Good- 112 now, Isaac T., 17, 24, 68; Griffith, Tietgen, Marie, 50 William Wiley, 14, 16; Kampschroeder, Titles I and II, P. L. 89-10, 77, 113 W. C., 1, 3, 48, 49, 51, 53, 55, 104, 113; Title III, P. L. 89-10, 106 Lawhead, Joseph Hadden, 20; Lem­ Title V, P. L. 89-10, 105 mon, Allen Bosley, 15, 19; MacVicar, Township High Schools, 84 Peter, 9, 10, 17, 67, 68, 82; Markham, Umholz, Edna B., 50, 113 W. T., 32, 34, 35, 44, 67; McCarty, Unification, 26, 82, 113 Hugh DeFrance, 9, 18; McClenny, University of Kansas, 28 George, 35, 44; Miley, Jess W., 31, 33; Van Horn, Margaret, 49, 51, 59, 65 Nelson, Frank, 22, 30; Ross, W. D., 27, Vigneron, John, 50, 91, 113 28, 29, 30, 35, 39; Speer, Henry Clay, Vocational Education, 26, 30, 36, 46, 96 19; Stanley, Edmund Lawrence, 21; Vocational Schools, 7, 26, 58 Stryker, William, 22; Thorp, Simeon M., Watkins, Charles, 50 16; Throckmorton, Adel F., 1, 3, 6, 45, Welch, Lyle, 113 48, 53; Winans, George Wesley, 20; Werner, Eugene, 113 Wooster, Lorraine Elizal>eth, 29, 35 Whitla, Helen, 50 State Textlx)ok Agencies, 109 Winans, George Wesley, 20, 112 Statistician, 24 Wooster, Lorraine Elizabeth, 29, 35, 112 Statistical Services, 80, 113 Worley, Catherine, 60 Stewart, Gerold, 113 Wright, C. O., 35, 69 Storer, Eldon, 113 Wyandotte Constitution, 9, 11 117 PRINTED BY ROBERT R (BOB) SANDERS. STATE PRINTER TOPEKA. KANSAS I 967

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