xt75qf8jhf5r https://exploreuk.uky.edu/dips/xt75qf8jhf5r/data/mets.xml Kentucky. Department of Education. Kentucky Kentucky. Department of Education. 1961-03 bulletins  English Frankford, Ky. : Dept. of Education  This digital resource may be freely searched and displayed in accordance with U. S. copyright laws. Educational Bulletin (Frankfort, Ky.) Education -- Kentucky Educational Bulletin (Frankfort, Ky.), "Organization, Growth, and Services of State Department of Education", vol. XXIX, no. 3, March 1961 text 
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Commonwealth of Kentucky 0

L EDUCATIONAL BULLETIN

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Published by

DEPARTMENT OF EDUCATION

WENDELL P. BUTLER
Superintendent of Public Instruction LIBRARY
Frankfort, Kentucky ‘

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ISSUED MONTHLY

Entered as second-class matter March 21, 1933, at the post office at
Frankfort, Kentucky, under the Act of August 24, 1912.

POSTMASTER: SEND NOTICES OF
CHANGES OF ADDRESS 0N FORM 3579

 

VOL. XXIX MARCH, 1961 NO. 3

      

    
   
 
 
 
 
 
 
 
 
 
  
 
  
   
  

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 FOREWORD

There is presented in this publication the story of the development
of the State Department of Education. This story includes some of the
reasons why it was created and the functions it has and is now
rendering in providing certain leadership and services in carrying
out the public school program.

The accompanying charts show the present organizational form
used in the performance of its functions.

The organizational pattern must of necessity be changed from
time to time in order to meet requirements of new and ever in-
creasing demands made upon the public school program. These

changes are made for economy and efficiency in fulfilling the necessary
functions of the Department.

It is hoped that the information contained herein will be of as-
SIStance to all who want to know something of the required services

of the Department in the performance of its role in the operation of
the school system of the State.

WENDELL P. BUTLER
Superintendent of Public Instruction

 

 

 

  

    

INTRODUCTION

The State Department of Education came into existence because ,j f

of the need for a central State agency to make effective the idea of
equality of educational opportunity.

This idea was embodied in the Declaration of Independence and
further emphasized in the federal constitution. Since man is not
born to, but must be trained to, develop his abilities to defend these
ideals of the Declaration and the Constitution, all citizens must be ;,
provided with an opportunity to fit themselves to defend and enjoy
these ideals to the extent of their ability. The ideal of equality of

educational opportunity was not only emphasized by the founding ”7

fathers of the United States, but it was followed by the leaders in

Education in forming and establishing the public school system of

our nation and for the Commonwealth of Kentucky.

The need for a central educational agency in Kentucky such as
the State Department of Education was not felt until the school dis-

vtricts began to realize the need for educational facilities which they

could not support, but which could be had by the merger of the
abilities of two or more such districts. The feeling developed, too,
that the scope and the quality of educational opportunity, wherever
they existed in the State, affected the whole people.

From this grew the idea that if the State should guaranteea
minimum program, that would be equally available to all, an ideal
of equality of educational opportunity could more nearly be realized
than if they continued to operate under a program of total local
support. As this idea was developed in community after community, ii
was soon realized that there was a need for a State agency to encourage
local units to exceed State-wide minimums. Such an expanSion of the
public educational program increased the demand for aSSistance from
a central agency.

Through such developments over the years, the State Department
of Education has been raised into a position which requires strong
leadership in educational affairs. The results have been advantageous
to local school units.

This leadership has further improved and strengthened 10031
programs of education. At the same time, the separation between
functions of the State and the local agencies generally has been Ca’e'
fully maintained so as to promote the growth of local freedom 0
choice and of operation.

the

~ 106

 

  

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other

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terms
KRS t

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and a:

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Educ;
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 : because {
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ence and '

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must be
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)tal local
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es strong
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red local
ween the
can cafe'
:edom of

One of the basic factors involved in providing equality of educa-
tional opportunity is that of securing funds with which to furnish
substantial equality of training.

A procedure for doing this, insofar as finances are concerned, was
stated about 1920 by Superintendent George Colvin. At that time, he
expressed a belief that it was a mistaken State policy to deny children
in some districts such educational facilities as is given to children in
other districts. He said about this situation:

“There is only one sound principle of taxation for the support
of schools and that is to levy your taxes where your property is
and to spend the money where the children are.”

This idea with that advocated by his predecessor, John Breckin-
ridge, in the 1850’s of sending funds to districts on the basis of attend-
ance rather than the pupil census is now being carried out by the

terms of what is known as the Foundation Program Law contained in
KRS Chapter 157.

How this equality of opportunity has gradually grown through
the development of the public school system of Kentucky, may be
traced in the story sketched in this bulletin. How the need arose, what
was done about it, and how it was done is also sketched. This has
been done with the ‘hope that there may be Ihad a better understanding
and appreciation of the school system that is now in operation.

The organization of the Department and its several service
agencies may be determined from the charts presented. The func-
tions of the several service agencies, the procedures for carrying out
these functions, and their effects on the several phases of the

educational program may be determined from the statements of the
several service agencies as outlined.

The basis for the sketches referred to are found in History of
Education in Kentucky by Barksdale Hamlet, A History of Public
Fiducatlon in Kentucky by M. E. Ligon, History of Education in
Kentucky 1915-1940 by H. W. Peters, and biennial reports and bulletins
of the State Department of Education.

107

 

 II.

III.

IV.

VI.

    

TABLE OF CONTENTS

 
  

 

  
 

 

 

  

  
  
  

 

PART I

The Public School System
A. National Basis ..................................................................................... 113
B. National Information Needed ......................................................... 115
Efforts to Establish a Public School System in Kentucky

A Attitude Toward Establishment ..................................................... 115
B State Constitution and Education—1891 _____________________________________ 116
C. Seminaries or County Academies ............................................. 120
D Private Academy 1810—1890 .................... 120
E Period of Discussion and Decision .............................................. 121
Developing the Common School System 1838—1850

A. The First Laws ___________________________________________________________________________ 125
B. The School Fund _____________________________________________________________________________ 126
C. Opposition to Public Schools .............. 127
D. Expressions of Public Sentiment ........................................ 127
E. Acceptance of School District Law __________________________________________________ 128
Developing the Common School System 1850—1908

A. Difficulties with Governor Helm and Sinking

Fund Commission ............................................................................... 129

B. Recommendations for an Efficient System ........................ .131
C. School Fund Made Twenty Cents—1869 .................................. 132
D. Recommendations of Superintendent Smith .. .133
E. Other Developments ..............................................................
F. The 01d Trustee System ......................................................... 135
G How the System Operated 1852—1908 ............................................. 135
Developing the Common School System 1908—1924

A. Committee to Study Educational Needs ..................................... 137
B. New School Code of 1908 ................................................................... 137
C. School Laws of 1912 ................................................... 139
D. County School Administration Law 1920 ....................... "14”
E. Acts 1922 __________________________________________________________________________________________ 141
F. Vocational Education _________________________ ,__,...142
G. Consolidation ___________________________________________________________________ "142
H. Financial Equalization ________________________________________________________________ "142
1. Recommendations of Kentucky Educational

Survey Commission __________________________________________ __ .. __,_....143

J. Summary _______________________________________________________________________________________________ 144
Development of the Department of Education as an
Administrative Agency for the Common School System-
1924-1960

A. Period 1924—1928 _________________________________________________________________________________ 1::

B. Period 1928-1932 _______________________________________________________________________________

108

II.

III.

 

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7n

 _.........145
......147

 

II.

III.

HFQI‘H‘JUQ

Period 1932-1936 ................................................................................ 148
Period 1936-1940 ................................................................................ 152
Period 1940-1944
Period 1944—1948
Period 1948—1952
Period 1952—1956
Period 1956—1960

 

PART II

State Department of Education 1960

A.

$3.0!”

E.

F.

Chart of Department Organization and

 

Services _________________________________________________________________________________________________ 165
State Board of Education ................................................................. 165
Superintendent of Public Instruction ............................................. 166
Ex—officio Duties of the Superintendent of

Public Instruction ................................................................................. 169
Executive Assistant to the Superintendent of

Public Instruction .................................... 170
Division of Departmental Finance and Services ......................... 171

Leadership Role of the Department of Education

A.

B.

 

  

History of Role _____________________________________________________________________________________ 17‘4
Leadership Procedures ..................................................................... 178
Organization of Instructional Services
Organizational Chart, Instructional Services .............................. 181
Ass’t. Superintendent For Instructional Services ..................... 18-2
DiVision of Guidance Services .......................................... 184
Division of Research ........................................................................ 186
Rural Development ............................................................................. 187
Ky. School for the Blind .. .1189
Ky. School for the Deaf _______________________________________________ __.191

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Bureau of Instruction ............................................................ 194
Division of Instructional Services ------ 195
Division of Special Education .................... 202
Division of School Lunch ............................................. 206
Division of Teacher Education and Certification ......................... 208
Division of Textbooks and Instructional

Materials ............................................................................................... 213
Civil Defense, Adult Education ................................. 220
Bureau of Vocational Educational .......................... 222

Division of Agricultural Education ...........

 

 

 

..22|4
DiVision of Home Economics Education ..................................... 227
Division of Trade and Industrial and Distributive
Education _ _ ...... 230
DiViSion of Veterans Education ....................................................... 237
Coordinator, National Defense Education Act .......................... 239

109

 

 

 

  

A.
B.
C.
D.
E.
F.
G.
H.

I.

J.
K.
L.
M.
N.
0.

Organization of Administrative Services

  

 

 

Chart of Organization of Administrative Services ..................... 244
Assistant Superintendent For Administrative

Services ................................................................................................. 245
Division of Statistical Services ..................................................... 247
Bureau of Administrative Services .
Division of Surplus Property ......................................................... 252
Division of Buildings and Grounds ............................................... 258
Division of Pupil Transportation .....

Division of Finance ........................................................................... 265
Division of Records and Reports ..................................................... 266

Bureau of Rehabilitation Services .......
Division of Rehabilitation Services _________________________
Coordinator of Rehabilitation Services .......................
Division of Disability Determinations ._
Division of Services for the Blind"
Kentucky Industries for the Blind ............................................... 278

  
  
 
 
  

 

  

 

 

 

 

PART I

BEGINNING AND GROWTH;

of

STATE DEPARTMENT of EDUGATION

  

 I
THE PUBLIC SCHOOL SYSTEM

A. National Basis

1. Ideals of the Founders

The public school system is typically American. The history
of education of the United States shows clearly that the American
people have evolved educational ideals and practices which are
unique. It has as its purpose the development of responsible
citizens. It is based on equality of opportunity in a democracy.
It has as its goal freedom, equality and self-government.

The founders of our democracy argued that for these reasons
schools were a public necessity. For centuries schools had been
controlled by a select group of nobles and churchmen and school-
ing had been thought of as a luxury. The family that could pay
for it, bought it. If it could not pay, the children did without it.

Now in a self-governing republic, representatives of the
people would take the place of the nobles and churchmen. It was
argued that if the public school was to serve all people, it should
have the support of all the people. This meant tax support. This
was a new way to support education. Since it benefited the whole
community, it should be paid for by the whole community.

It was agreed that if the people paid for schools, they should
have a right to control and to oversee them as they provided the
educational facilities for their children.

After many years of thought and experience, the early settlers
of our nation, in their efforts to provide educational facilities for
their children, finally decided that the program of education
should be a public tax-supported system and that its control
should be close to the people. This type of control laid the founda-
tlon for one of the most Characteristic features of our American
system—local control by lay boards of education. These boards

were to be responsible to the State, but ultimately they would
be responsible to the people.

 

 

As a result of such thinking, education was made a State
function rather than being centralized in the administrative con-
trol of the Federal Government. Education was a part of a power

reserved by the Tenth Amendment of the Constitution to the
States or the people.

. Since education is a State function, the courts have con-
s15tently held that the State Legislature may vest the State edu-
cational agency With authority to supervise a State system pro—

. Vlded by the Legislature. If local administrative units fail to
prov1de a program of education meeting requirements considered

In the interest of the State or for the benefit of the individual,
the Stateagency through its administrative organization may take
steps or it may be legally empowered to take reasonable action

113

 

     

in case such program is not provided. Rarely has any State been
restricted in its exercise of this power and then only when there
has been some restriction of the rights guaranteed by the United
States Constitution.

This decision of the people had as its background the Ameri-
can ideals of freedom, equality and self-government. These ideals
were based on the belief, as expressed in the Declaration of Inde-
pendence, that all men are created equal and endowed with cer-
tain inalienable rights; namely, life, liberty and the pursuit of
happiness. They believed that any government should get its just
power to govern from the consent of the people. For generations
these have been cherished as a part of our national heritage.

During recent years we have witnessed the rise of powerful
challenges of these ideals from without and from Within. These
challenges have placed our people at one of the crossroads of our
history. What we will do with it will depend a great deal upon
an educational program closely related to the needs which we
face.

The people felt that education must aim at the production of
men and women who could share rights and responsibilities in an
intelligent manner. This, they said, would require faith, resource-
fulness and good judgment. Universal education seemed to be the
answer.

The national leadership for a program of education which
would continue American ideals was furnished by persons well
known in American history, namely Horace Mann, Mass; Henry
Barnard, Conn.; Calin Wiley, North Carolina; Caleb Mills, Indiana;
Samuel Lewis, Ohio; John Swift, California; and John C. Breckin-
ridge, Kentucky. These, with a host of others, spoke, lobbied,
organized and sent pamphlets in aid of a program for the establish-
ment of a public school system, which they believed would PFO'
vide a national educational program in keeping with the American
ideals which they shared.

. The Overall Program

Out of the movement which they led, came the idea of a com‘
mon school system and which they knew as instruction below
high school. Those who thought much about it tended to agfee
that basically the new school movement would have to pronde
the following kinds of services:

a. In order to have an intelligent electorate, there WOUld
have to be a basic educational program for the wh01e
citizenry.

b. To assure a continuing supply of well prepared leaders.
there would have to be equality of access to further Edu'
cation.

c. To provide competent instructors, there Should be ade-
quate teacher education facilities.

114

    

rec
fac
prt

wk
ter

 ;e been All these were to be fitted together into a system that would

 

1 there seek at all times to advance and strengthen the American ideals.
United
B. National Information Needed

Amen- During this national movement, one of the representatives to
3 ideals which we have referred, Henry Barnard, an educator from Connecti-
‘f Inde- cut, went to Washington, D. C. in 1838 in search of reliable facts
,th'cer- about the nation’s educational program. To his surprise, he found
25“”. of none. For the next thirty years he led a movement, with his co-
lts gust workers, for the establishment of a public school system, and to get
:rathIlS established in Washington a Federal education agency.
Lge. In 1839, one of his activities was to influence those in charge of
)werful the 1840 census to collect data concerning schools, academies and
. These colleges, as well as on illiteracy. This data was used in an effort to
1 Of our promote the educational program which they sponsored. From time
1.111170“ to time, beginning in the 1840’s, he and his leaders in the public
uch we school movement made various proposals for the establishment of ;

this central agency in Washington, D. C. 5;]
ction Of An act was approved in 1867 which provided for a Department E:
as in an of Education to be established and directed by a Commissioner to g'ii‘
gsource- be appointed by the President. Henry Barnard was the first Com- 3:!
)be the missioner. He held the office until 1870. Over the years, the name ‘ j

of this central agency has been changed and its relationship to other 53‘ , ‘
l which departments shifted until now (1960) it is known as the U. S. Office 1‘ g ‘
us well of Education and is a part of the Department of Health, Education, t" .
; Henry and Welfare.
Indiana; Through the years of its history, this office has continued the g, 1
3reckin— policies of Henry Barnard in collecting and disseminating educational . V
lobbied, information and data and in making studies in all aspects of educa-
ntablish- tion.
11d pro-
merican

II

EFFORTS TO ESTABLISH A PUBLIC SCHOOL
”hem SYSTEM IN KENTUCKY
'1 e
.0 agree A. Attitude Toward Establishment
prOVIde The activity in Kentucky in the establishment of a common

school system was in response to the activities of a national force
3 would of leading citizens interested in such a system.
e whole Almost from the time of Kentucky’s admission to the Union,

records show attempts of citizens to provide adequate educational
1ead€T5I faCIhtles for all the youth of the State. A history of the education
ner edu— program in Kentucky shows repeated attempts and toilsome efforts

In behalf of the common schools which often times came to failure
be ade- glrien success seemed almost certain. These efforts form a most in-

e

sting record in school legislation. Those who laid the foundation

115

 

     

  

of our State government felt deeply the necessity for educational
facilities that would be equally available to all children and which
would best suit them to carry out the ideals of the democratic form
of government which had been established. Many of the acts of the
legislature over the years show strength, conflicts and sincerity of
those who sponsored the educational program on which our present
education system is based.

State Constitution and Education—1891

The State system of common schools adopted in 1838 and finally
provided for by the Constitution of 1850 included certain controls ad-
vocated by the national committee and recommended by the State
committee. These restrictions included a guarantee of freedom of
conscience and a separation of church and State in the expenditure
of school funds.

The Constitution of 1891 further guaranteed that the manage-
ment and control of the school system should be separate from the
rest of the State government, that funds should be used for school
purposes only and that the school system should be under the juris-
diction of a central state agency and controlled locally by boards
of education elected by the people.

1. Separation of Church and School
Section 5 of the State Constitution provides:

a. No preference shall ever be given by the law to any religious
sect, society or denomination nor to any particular creed, mode
of worship or system of ecclesiastical policy; nor Shall any
person be compelled to attend any place of worship, to con-
tribute to the erection or maintenance of any such place of
the salary or support for any minister of religion.

b. Nor shall any man be compelled to send his child to any
school to which he may be conscientiously opposed.

c. Section 189 provides that no funds raised for educational pur-

poses, shall be used in aid of any church sectarian or denomi‘
national school.

2. Separation of Education from Other Agencies of Government

a. School elections. Section 155 provides that the election 0f
school districts and other common school district electiOnS
shall be under the control of the General Assembly and mt
governed by the Constitution.

b. Funds preserved for education. Sections 184, 185 and 188 pro-
vide that funds which were formerly used by the State Shall
be guaranteed to the schools by the issuance of State bonds
which bear interest for the benefit of education.

c. Use of school funds. Section 186 of the Constitution retlLlires
that all funds accruing to the school fund Shall be used for
the maintenance of the public schools of the CommonWealth

116

 

 itional

which and for no other purpose. Chapter 157 of the Kentucky Re-
: form vised Statutes prescribes the manner of the distribution of
of the public school funds.

FitY 0f . d. No local or special legislation to be passed. Section 59 of the
)resent State Constitution prohibits the General Assembly from pass-

ing local or special acts concerning the management of the
common schools.

3. General Assembly Authorized to Provide a System of Common

 

f' all

011: ad}: Schools

2 State Section 183 of the State Constitution authorizes the General

lom of Assembly to create and to provide for the control and manage-

iditure ment of an efficient system of common schools throughout the
State. KRS Chapter 158 creates and defines a uniform system

anage- of common schools.

h

3121:0091 4. A Summary of the Constitutional Provisions Concerning Common

film Schools

[boards It may be readily seen from the sections of the Constitutions
cited above that the Constitution contemplates and authorizes:
a. A tax—supported system of common schools
b. That the public school funds shall not be used in aid of any

sectarian or denominational schools '

aligious c. There shall be a separation in the control and management of

t, mode the common schools from other agencies of the government

111 any that has been designated by the Legislature in conformity

to con‘ with the Constitution

lace 0I d. That the election of trustees or board members shall be under

laws prescribed by the General Assembly rather than con-
to any trolled by Constitutional provisions.
a1 pur- 5. School Laws

,enomi- The. General Assembly of the State, as a representative of the
people, in compliance with the requirements of Section 183 of the
Constitution, has enacted laws for the creation, control and man-

aent agement of a common school system. They have designated certain
tion of agencies to be responsible for the operation and control of an
[ectionS efficient common school system. One of those agencies is desig-
1nd not nated as the State Department of Education, the other as a dis-
trict board of education.
88 pro- By specific laws the General Assembly has assigned to each
te shall of these agencies certain responsibilities for providing the kind
3 bonds of program which will meet the educational needs of the several
communities of the State in such a manner as will, when taken
equires as a whole, provide-a citizenry capable of taking its place in the
.56 d for advancement of c1v1lization.
1wea1th Kentucky is fortunate that the laws requiring State responsi-

bility for the common school system be vested in a central edu—

117

 

   

    

cational agency rather than being dispersed among two or more
boards, commissions or agencies.

The laws of approximately a dozen other departments of
government are affected by the educational program in sucha
manner that they mutually need the advice of each other. Their
cooperation is needed to assure that the educational program may
profit by certain services of these departments which is essential
to the educational program. Examples of such departments are
Health, Safety, Insurance, Fire Marshal and the Attorney General.

Many sections of the law might be cited to show the inten-
tion of the General Assembly to keep education as the direct
responsibility of the people through their boards of education
and separate from other governmental agencies and free from
partisan politics.

The laws which provide for a State Board of Education and
a chief State school officer were designated to have education
separate from other State agencies in that they have been as-
signed by law the specific functions which is in conformity to
the requirements of the State Constitution. -

KRS 156.140 entitled “The Superintendent to Control Ap-
pointment of Division Heads” authorizes the Superintendent of
Public Instruction to have general supervision of assistants, agents
and employees of the Department of Education. He has authority
to set the salaries of the division heads, assistants, agents and
employees of the Department, subject to certain applicable parts
of law which are not essentially educational in deSign. These
applicable non-educational laws refer to certain stipulations whiCh
are applicable to all employees and which are not in conflict with
duties and responsibilities of the chief school officer.

A great part of the administration and operation on both the
State and local levels is done by regulation. The advantage of this
has been that if the regulation is not suitable for any reason, it
can be modified and presented for change at the next meeting 0f
the regulatory body.

The legislature has usually confined its activities to enacting
laws indicating what is wanted. Ways of doing things; when;
where; and how may need to be changed frequently. For that
reason these procedures are best carried out through regulation-
Any legislative act may need to be changed, but usually no change
should be made until a specific program has been in operation
long enough to prove its worth or lack of suitability.

The General Assembly has allocated a portion of the responSI'
bility of providing common school educational service to 10'“
school districts which are under the contr01 of boards of education
elected by the people. Each of these districts has authority 11nd?
law to determine the facilities which it needs to discharge ”5
educational responsibility.

118

 

    
 
 
 
  
  
  
 
 
 
  
  
 
 
 
 
 
  
  
 
 
  
 
  
  
 
  
  
 
  
 
  
 
 
 
  
 
 
  
 
   
  
 
 
 
  
 
 
  
  
 
   
 

01‘ more

ments of
n such a
er. Their
ram may
essential
rents are
General.

he inten-
he direct
education
‘ree from

ation and
education
been as-
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1trol AP'
endent of
its, agentS
authority
gents and
able parts
:11, These
ans whiCh
lfliCt with

1 both the
Lge of this
reason, it
meeting 0f

3 enacting
gs; when;
For that
-egulati0n-
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operation

a resPOI‘Si'
e to local
education
rity under
charge “5

6.

The control and management of the common schools in these
districts is reserved to the local board of education and set apart
from other local governmental units.

Local school districts are recognized as basic units in the
educational program. Boards of education of these districts are
given broad powers by law for the direction, management and
operation of the local educational program. The local people look
to these boards for local educational freedom, responsibility and
initiative. There is conviction of the people in these districts that
the preservation of the American way of life depends on keeping
control of the schools by electing boards of education by popular
vote of the people.

School district boards have served their districts well. They
have kept the public schools, public, and in the immediate posses-
sion of the people rather than of the general government, of pro-
fessional educators or of private corporations. These boards have
also