W&M ScholarWorks Dissertations, Theses, and Masters Projects Theses, Dissertations, & Master Projects 1992 School system merger: A study of power and redistribution of resources Rebecca Clark White Adams College of William & Mary - School of Education Follow this and additional works at: https://scholarworks.wm.edu/etd Part of the Educational Administration and Supervision Commons, and the Public Administration Commons Recommended Citation Adams, Rebecca Clark White, "School system merger: A study of power and redistribution of resources" (1992). Dissertations, Theses, and Masters Projects. Paper 1539618699. https://dx.doi.org/doi:10.25774/w4-r4zg-1y36 This Dissertation is brought to you for free and open access by the Theses, Dissertations, & Master Projects at W&M ScholarWorks. It has been accepted for inclusion in Dissertations, Theses, and Masters Projects by an authorized administrator of W&M ScholarWorks. For more information, please contact [email protected]. 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Ann Arbor, MI 48106 SCHOOL SYSTEM MERGER: A STUDY OF POWER AND REDISTRIBUTION OF RESOURCES A Dissertation Presented to The Faculty of the School of Education The College of William and Mary in Virginia In Partial Fulfillment Of the Requirements for the Degree Doctor of Education Submitted by Rebecca Clark White Adams April, 1992 SCHOOL SYSTEM MERGER: A STUDY OF POWER AND REDISTRIBUTION OF RESOURCES by Rebecca Clark White Adams Approved April 1992 by Q/Ht. _(a ___ JamesKM. Yaiikovich, Ed.D. Chair of Doctoral Committee Robert j. Hanny^Ph.D. Jdkn R. Thelin, Ph. D. Dedication This dissertation is dedicated to my family whose encouragement and assistance made it possible for me to pursue my educational dream. My sons, Samuel Clay Adams, Christian McGehee Adams, and Joseph Clark Adams assumed responsibilities without complaint and were unfailing in thexr support of my doctoral program. My parents, Joseph and Virginia White, have served as educational role models throughout my life. They taught me the meaning of life long learning. Table of Contents Page Dedication iii Acknowledgments ix Abstract x Chapter I. Introduction to the Study 1 Purpose of the Study 2 Geneology of Norfolk County 3 Historical Background 4 Statement of the Problem 8 Rationale 9 Procedures 9 Limitations 11 Definition of Terms 11 II. A Review of the Literature Related to School System Merger and Power 13 Concept of Community 16 Concept of Power 17 Tidewater Consolidations 26 Virginia Beach-Princess Anne County 27 Newport News-Warwick 28 South Norfolk-Norfolk County 30 Summary 3 0 III. Redistribution of Power and Resources 32 Introduction 33 Environment for Merger-Introduction 34 iv Annexation Laws 35 Merger Laws 39 Tidewater Consolidations 44 Newport News-Warwick 44 Elizabeth City County-Hampton-Phoebus 50 Princess Anne County-Virginia Beach 51 Norfolk County-South Norfolk 58 Annexations from Norfolk County 1940-1960 59 Tidewater Map 61 Hypothesis #l-lntroduction 74 South Norfolk School Facilities 75 Park Elementary School 77 Portlock Elementary School 78 George Washington Carver Elementry and High Schools 79 Oscar Frommel Smith High School 80 South Hill Elementary School 81 South Norfolk Elementary School 82 Waterford Elementary School 83 Rena B. Wright Elementary School 84 School Site Size 85 School Enrollment 1960-61 86 Summary 87 Norfolk County School Sites 88 Norfolk County School Funding 1960-61 91 Bell Mill School 93 V Central Elementary School 94 Edwin W. Chittum Elementary School 95 Churchland Elementary School 96 Churchland High School 97 Churchland Junior High School 98 Crestwood Elementary School 100 Crestwood High School 101 Deep Creek Elementary School 102 Deep Creek High School 104 Great Bridge Elementary School 105 Great Bridge High School 106 Great Bridge Junior High School 107 Hickory Elementary School 109 Indian River Elementary School 110 Norfolk Highlands Elementary School 111 Southeastern Elementary School 113 Southwestern Elementary School 114 Sunray Elementary School 115 B. M. Williams Elementary School 116 High School Stadia 117 Norfolk County Enrollment 1960-61 118 Recommendations 119 School Board Actions 120 Policies and Procedures 127 Hypothesis #1-Summary 132 Hypothesis #2-Introduction 133 Edwin W. Chittum 134 vi Edward E. Brickell 1 4 4 William J. Story 146 Harry Paxson 148 Henry I. Willett, Jr. 149 B. M. Williams 151 Mrs. J. J. (Margaret) Booker 152 Dr. William S. Terry 153 School Board 154 Hypothesis #2-Summary 157 IV. Summative Review 158 Historical Background 159 Hypothesis #1 162 Hypothesis #2 166 Conclusions 168 Major Sources 171 Recommendations for Further Study 171 Appendices 173 Appendix A. Consolidation Agreement for the City of South Norfolk and Norfolk County, Virginia 174 Appendix B. Charter for the Consolidated City 188 Appendix C. List of Norfolk County Schoo Board - 1962 List of City of South Norfolk School Board - 1962 City of Chesapeake School Board 1963 Chesapeake City Council January 1, 1963 229 References 230 Books, Periodicals, Government Documents 230 Newspapers 233 School Board Minutes 235 Interviews 237 Vita 239 viii Acknowledgments The writer wishes to express appreciation to members of her Doctoral Committee for their support throughout the dissertion experience. Dr. Hanny and Dr. Thelin provided the class instruction and suggestions that expedited the research process. Dr. Yankovich's attention to detail and unfailing encouragement cannot be overstated. He constantly pointed to the end result as a goal worthy of perseverance. Special friends and colleagues must be thanked. The following administrators from Chesapeake Public Schools contributed greatly to the writer's completion of the doctoral program: Janet T. Garner, Penny G. Goodin, Linda D. Palombo, and Connie C. Saul. They travelled together to classes in Williamsburg for three years. They supported each other academically, professionally, and personally as they sought to expand their horizons. Doris Wayman, both friend and secretary, was kind enough to volunteer to proofread the final copy of this dissertation. She too provided the constant encouragement necessary to reach this goal. This study turned into a labor of love as the writer interviewed a number of people who had personal ties with the Norfolk County/South Norfolk consolidation in 1963. Thanks go to all of those who so willingly shared their knowledge in this inquiry. Special appreciation must go to Mr. Edwin W. Chittum, who gave unselfishly of his time and historical resources, and Dr. Henry I. Willett, Jr., whose information raised countless questions that opened many doors in this study. SCHOOL SYSTEM MERGER: A STUDY OF POWER AND REDISTRIBUTION OF RESOURCES Abstract The purpose of this study was to examine the merger of the school systems of the City of South Norfolk and Norfolk County in the State of Virginia. The merger of these two geographical entities was consummated on January 1, 1963. Norfolk County was formed in 1636 by the Virginia General Assembly. The cities of Norfolk, Portsmouth, and South Norfolk were carved from this county. A series of annexations by these cities between 1940 and 1960 cost Norfolk County thirty-three square miles of territory, 110,000 residents, and $1,881,000 in revenue. In order to protect its viability, Norfolk County voted to merge with the small City of South Norfolk. The City of Chesapeake was formed. Since schools were a major issue during the pre-merger campaign, this study examined the merger of the two school systems with primary emphasis on the control of power and the distribution of resources for facilities in the newly formed city. The research data included primary and secondary sources in the areas of documents, newspapers, oral history, quantitative records, historical texts, and relics. A number of major figures in the school system of that period were available for personal interviews. The hypothesis that resources for facilities were distributed equitably to the former South Norfolk and Norfolk County areas was accepted. Equitable did not mean equal since South Norfolk schools were in much greater need at the time of the 1963 merger. Therefore, the new Chesapeake School Board provided a larger share of the 1963 bond revenues and other fiscal resources to the former South Norfolk Schools. The hypothesis that the power in the newly merged Chesapeake School System was unevenly controlled by former Norfolk County leaders and residents was accepted.