xt76dj58gz62 https://exploreuk.uky.edu/dips/xt76dj58gz62/data/mets.xml Kentucky. Department of Education. Kentucky Kentucky. Department of Education. 1963-11 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.), "History of Education in Kentucky 1939-1964", vol. XXXI, no. 11, November 1963 text
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fﬁﬂ‘ory 0/ Educalzbn

in Kentucky

1939 —1954

Published By
STATE DEPARTMENT OF EDUCATION

Wendell P. Butler

Superintendent of Public Instruction

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FOREWORD

In the closing year of the administration of Superintendent
Barksdale Hamlett, in 1914, the State Department of Education pub—
lished a “History of Education in Kentucky.” That publication set forth
the background of our public educational system in Kentucky, and
reviewed briefly the activities and progress of education during the
administrations of the first nineteen Superintendents of Public Instruc-
tion.

At the beginning of Superintendent Harry W. Peters’ administra-
tion, 1936—1940, plans were made to publish a report of the educational
progress in Kentucky for the quarter of a century from 1915 to 1940.
That historv reviewed the activities during the administrations of the
six Superintendents of Public Instruction from 1915 to the close of
Superintendent Peters) administration in 1939.

As Superintendent of Public Instruction at the close of another
quarter of a century in terms of published reports, I feel it both a
privilege and a responsibility to continue the pattern established
by my predecessors. Unquestionably, the past quarter of a century
encompassing the six administrations since 1939 has witnessed the
fruition of many dreams of earlier state superintendents for an educa-
tional system worthy of a great Commonwealth.

The unfolding of this history begins with a glimpse backward to
the state school system of a quarter of a century ago. It continues with
brief chapter reviews of the six administrations of the five Superinten—
dents of Public Instruction since 1939.

I trust this record of great accomplishments in education will be
0f use to the many educators who have helped to shape it; the many
Citizens who have uncompromisingly supported better education, and
the students in the schools and colleges of Kentucky who will help to
write the educational history of the next quarter of a century.

This is the third time that facts have been assembled for specific
periods on the history and development of the public school system of
Kentucky.

The first time such an activity took place was in 1914. This
covered briefly the period from the settlement of the state to and
including the school year 1914. This was done under the direction of
the then Superintendent of Public Instruction, Barksdale Hamlett.
The part prepared on the public schools was written by T. J. Coates,
a member of the State Department of Education and Supervisor of

Elementary Schools. The part concerning church and schools, other-
wise endowed, was prepared by F. C. Button, a member of the State
Department of Education and who was also supervisor of Elementary
Schools.

These facts were assembled into one volume. They give briefly
the background, growth, and development of the system of public
schools in Kentucky. This growth and development came under the
supervision of nineteen superintendents of public instruction.

A second volume of facts covered a period of twenty—five years
from 1.915 to 1940. During this period, six persons served as Superin—
tendent of Public Instruction. This volume was prepared under the
direction of Harry W. Peters, Superintendent of Public Instruction
(1936-40). He authorized Mr. Virgil Chapman, a member of the State
Department of Education and Assistant Director of Free Textbooks. to
prepare such a volume of facts. After his untimely death, his wife.
Mrs. Chapman, continued to assemble facts until lack of funds
terminated her employment. During the latter part of his term of
service, several members of the staff of the Department of Education
assembled material which was finally organized for publication by
“Freddy” Riddle, another member of the staff.

This, the third volume on public school development, was pre-
pared for the purpose of assemblying into one volume historical facts
on education for the period 1940—64. These have been published with
the hope that they may be of use (1) for comparison with similar
pertinent facts, (2) as examples of activities based on past procedures,
or (3) in making adjustment of policies and procedures for the benefit
of further action as occasion may warrant.

The first Chapter of this publication gives the highlights of the
public school situation in 1.939. It furnishes a background for measur—
ing the growth and development of the public school system after
that date.

The chapters by administrations contain, essentially, the stmy of
a plan of equality of educational opportunity. This story, in more or
less detail, together with the many problems which were involved due
to changing conditions and the growth and development of the plan.
is based on facts and conditions as revealed in the biennial. reports of
the superintendents of public instruction as well as other publications
of the Department of Edu ~ation. It has been ar 'anged and developed
by Mr. Gordie Young, former Assistant Superintendent of Public
Instruction (1928-1956), who served in such capacity for the greater
period of. time covered in this publication. Final editing, including
the preparation of materials for the Second Administration of Superin—
tendent Wendell P. Butler, was made by Mr. Ray N. Drvden, and
other Staff Members of the Department of Education. ‘

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INTRODUCTION

The information contained in this volume for the period of 1940-64
not only recites the various problems in education which arose from
time to time, but it shows how the solution of one outstanding and
basic problem came about. The procedures which were followed
developed a plan of equality of educational opportunity for all the
children of the State. This was done in connection with and in addi-
tion to any other needs and problems whether or not they were con-
tributory to the main need.

This plan of equality of opportunity provides a basis for an educa—
tion program of inestimable value in the maintenance and development
of both the natural and human resources of the state.

It is hoped that the facts contained in this volume will furnish not
only a history of educational development for this period but that there
may be found strategic and influential procedures which will be availa-
ble to others who may face similar or related problems.

No attempt has been made herein to write a complete history
of education for this period, but instead, to record the history of the
educational developments of the school system essentially as they are
shown by the Department of Education publications. The basis for the
information contained in this volume is the biennial reports of the
respective superintendents of public instruction.

It has been assembled by periods of service of the Superintendents
of Public Instruction: John W. Brooker, 1940—44; John Fred Williams,
1944-48; Boswell B. Hodgkin, 1948-52; Wendell P. Butler, 1952-56;
Robert R. Martin, 1956-60; and Wendell P. Butler, 1960-64.

The purpose of the arrangement has been to make the facts readily
available not only for the use of those who may desire them as a record
of history but for the consideration of those who may be able to use
them as a basis for future action in providing educational facilities
suitable to the needs which may arise from time to time.

An attempt has been made to show the essential facts in the
development of a plan of equality of educational opportunity for the
school children of the state. It is of interest to note how this activity
developed over a period of twenty-four years through the leadership
exercised by the respective Superintendents of Public Instruction. This
plan resulted in a central emphasis regardless of other interests and
purposes and in addition to any other emphasis made by those inter-
ested in the educational welfare of the state.

The plan was finally made possible by an amendment to Section
186 of the State Constitution and the passage by the General Assembly
of the Commonwealth of Kentucky of whatis known as the Foundation
Program Law. A better term for this activity might be a foundation
Plan, Law. The law on which the plan is based makes it possible to
collect taxes where the wealth is located and spend the funds where
the children who attend school are located.

A similar procedure for providing educational facilities had been
advocated for about one-hundred years before this plan be‘ame
Operative. Attempts had been made by passage of laws and making
appropriations therefore but the courts had held that the only way to
put into effect such an id a would be to amend Section 186 of the
1891 Constitution.

Any program which may be based on this plan will be ever—
changing. Its extent will depend upon changingr conditions. the need
of those who are to be benefited from the program. and the initiative
and management of those who make and operate such a program from
time to time.

The period of time (1940—1964) may be considered the period
in which a fundamental change was made in the educational program
of the state. Five preceding foundational changes may be said to have
been made from the beginning of the school system of the state. Such
changes should be listed as follows: (I) a system of free schools, 1850:
(2) tax support made ample for the support of the system by an increase
in the rate from 5 cents to 20 cents. 1867; (:3) county school system
adopted, 1908; (4) pay of teachers on the basis of qualifications and
pupil attendance instead of a per capita basis. 1920; (5) New School
Code, 1934; (6) the Foundation Plan and Program and its full financ—
ing, 1956.

GORDIE YOUNG, Former Assistant
Superintendent of Public Instruction
1928-1956

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TABLE OF CONTENTS

Part I
CHAPTER Page
1 Public Schoo] System~1939 ______________________________ 13
Part 11
11 John W. Brookcr—1940-19-14 ______________________________ 21
111 John Fred VVilliams—1944—1948 ___________________________ 49
1V Boswell B. Hodgkin—19484952 ___________________________ 77
V Wendell P. Butler—19521956 _____________________________ 111
VI Robert R. Martin—19561960 _____________________________ 141
V11 VVendeH P. Butler—19601964 ____________________________ 175

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CHAPTER I

A Glimpse Backward: The Educational System of Kentucky—1939

The purpose of Chapter I is to sketch briefly the status of the
educational system in Kentucky at the close of the administration of
Harry W. Peters in 1939. This particular year has no special significance
other than the fact that it serves as the connecting year between a
twenty-five year span of “History of Education in Kentucky”, 1915—1940,
and the current record of six four—year administrations, 1940—1964.

The sources of data for this chapter are the Biennial Report for 1939
and History of Education in Kentucky, 1915—40. Quoted materials are
from these sources.

A brief description of the educational system and conditions that
existed in 1939 is provided for several reasons: (1) to acquaint the
reader with the educational realities of a quarter of a century ago;
(2) to indicate the dimensions of the problems confronting the succeed—
ing superintendents of public instruction; and (3) to focus on a typical
pre—war school year with its struggles and recurring problems as a
reference point for the advances in education in Kentucky in the post—
World War II Era.

Organization of the Public School System in 1939

The following statement gives pertinent facts concerning the public
school system at the close of the administration of Superintendent Peters
in 1939 and at the time John W. Brooker became Superintendent of
Public Instruction on the first Monday in January, 1940. From this
information, the reader may get seine idea of the educational conditions
confronting Mr. Brooker when he took office. From it, one may get
a better understanding of the educational forces at work at that time and
the changes which took place during his administration.

1. State Board of Education

By the enactment of the New School Code in 1934, the governing body
for the public school system on a state—wide basis was placed under the
control of a State Board of Education consisting of seven lay members
appointed by the Governor. The Superintendent of Public Instruction
was made its official chairman. This board replaced a State Board of
Education composed of the Superintendent of Public Instruction, At-
torney General, and the State Treasurer.

2. Superintendent of Public Instruction

The 1934 edition of the School Laws gave the Superintendent of
Public Instruction, who is an elected official and executive officer of
the State Board of Education, much authority and responsibility for

providing educational leadership throughout the state. The purpose of
the law appears to have been restricted by the State Constitution which
prevented the Superintendent of Public Instruction from being authorized
to succeed himself. It has been the recommendation of many Superin-
tendents of Public Instruction, both before and since the passage of the
new law, that this official should be appointed rather than elected by the
people. This, they say, would better enable the continuation of good
policy and practice in public school administration.

It may be said, however, to the credit of the superintendents of past
years, that much of the reason for this recommendation has been elimi—
nated because of the fact that the policies of the predecessor have been
adopted in general by the succeeding superintendent.

The leadership furnished by the teaching and administrative forces
of the State through the State educational association has been influ-
ential, if not greatly responsible, for keeping educational policies more
or less consistent over the years. It has been a rather uniform practice
for each incoming Superintendent of Public Instruction to retain prac-
tically all of the personnel of his predecessor.

3. State Department of Education

The organization of the State Department of Education in 1939 was
set up on a basis of the different services rendered. Each service was
designated as a division. During the administration of Superintendent
Peters 1936-40, there were eight divisions as follows: a. School Build-
ings and Grounds; b. School Census and Attendance; c. School Finance;
d. Free Textbooks; e. School Supervision; f. Teacher Education and
Certification; g. Special Education; h. Vocational Education.

4. School District Organization

By the rewriting of the School Law in 1934, school districts of the
State were classified into two types, namely county and independent
districts. The county school district in 1940 consisted of all of the
remainder of the county outside the boundary of an independent school
district.

An independent district at that time consisted of territory in or
around cities of the first five classes and in territory other than in and
around cities of the first five classes that contained a school census
enumeration of 200 or more white children. There was also provision
for temporary independent school districts subject. to the approval of
the State Board of Education.

These districts, both independent and county, were governed by
boards of education consisting of five members elected by the people
of the respective districts. This was in contrast to 120 county districts,
25 city, and 117 independent districts immediately preceding the passage
of the 1934 law. It may be of interest to note that in 1915 there were
405 independent districts.

The city and independent school districts before 1934 were governed
by boards of education with varying numbers of members of the re-
spective boards of education. The number of members before 1934
usually was five, six or nine. At the time of the passage of the 1934

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act, first-class cities had five members; third—class cities, nine; fourth-
class cities, six; and grade school districts, five. In 1908, which is the
date of the passage of the County School District Law, cities of the first
four classes elected two members to the board of education from each
of the city wards. These wards were political divisions for other purposes.

5. County School Administration

County school superintendents were employed by Boards of Educa-
tion elected by the people rather than having a superintendent elected by
popular vote as had been the custom before about 1920.

The sub—district trustee system which had absolute authority to
recommend teachers was gradually giving way to teachers being elected
on the recommendation of the county superintendent of schools. About 75
of the 120 counties had done away with the sub-district trustee system

by authority of law.

Status of the Educational System in 1939

A few of the pertinent facts about education and conditions that
existed in 1939 are as follows:

1. School Districts

In 1939, at the close of Superintendent Peters’ administration, Ken—
tucky had 262 administrative units: 120 county districts and 142 in—
dependent districts. The trend had been steadily downward from the
554 districts in 1915; the net change for the twenty-five year period was
292 fewer districts or a decrease of 53 per cent.

2. School Census

The school census for 1938-39 was 795,374 divided as follows: 557,794
or 70 per cent in county districts, and 237,580 or 30 per cent in inde—
pendent districts.

3. Average Daily Attendance

The average daily attendance was 494,339 or 62 per cent of the school
census. The total ADA was divided as follows: 335,648 or 68 per cent
in county districts, and 158,691 or 32 per cent in independent districts.
In county districts, the pupil ADA was 60 per cent of the county school
census; in independent districts, the pupil ADA was 67 per cent of the
respective school census.

4 Number of Elementary Schools and Enrollment

In 1938—39, there were 4,383 one—teacher schools; 1,052 two-teacher
schools; 194 three-teacher schools, and 644 schools of four or more
teachers. The 4,383 one-teacher schools is in marked contrast to the
7,067 one-room schools in 1918-19. The enrollment in grades 1-8 was
518,051 pupils.

5. Number of High Schools and Enrollment

In 1938—39, there were 783 public and private high schools, This
number represented a decrease of 65 schools from the all-time high of
848 high schools in 1935.

In the school year 1938-39, there were enrolled in all high schools
101,154 pupils in grades 7-12. The total enrollment in grades 9-12 in
public high schools was 92,328; and in non-public high schools, 8,826.

6. Salaries of Teachers

The average annual salary for teachers in 1938—39 was $890432. “The
minimum salary that may be paid teachers by law has been increased
to $75.00 per month, and the minimum salary that may be paid to county
school superintendents is $1200 annually."

7. Number of Teachers

There were 18,342 teachers in 1938-39. “The typical teacher had
approximately three and one—half years of college training. Out of 100
teachers employed in the public elementary and high schools in 1938—39,
45 had four or more years of college work, 12 had three years, 35 had
two years and eight had less than two years . . . The percentage of
certificated teachers who were college graduates increased from ap—

proximately 25 per cent in 1935—36 to approximately 40 per cent in
1938—39.”

8. Term Lengths

“The minimum school term length is seven months. Many communi—
ties now have school terms of more than seven months. During the
school year 1938—39, nineteen county school districts had school terms
of nine months for both elementary and high school pupils.”

9. State and Local Revenue

Total state and local revenue for the school year 1938-39 amounted
to $24,306,493.42. Of this amount, $14,727,47991 or 60.6 per cent was
raised locally; $9,579,013.51, or 39.4 per cent was provided by the state.
The total revenue provided $49.08 per pupil in ADA; $29.70 from local
sources and $19.38 from the state. The state per capita for education was
$12.12. (In fact, $12.00 was a magic figure in Kentucky education for
nine years; the variation in State per capita from 1934 to 1943 was $1.93
and the average for the nine year period was $12.00).

10. Buildings and Grounds
From the Biennial Report 1939:

Ennis"nirroiectgin a 1 46411947: 7’ ﬁlléxﬁoiw
1938-39 158 $ 3,774,535 $1,968,934
1930—39 1758 24,780,627 9,708,921

“It should be pointed out that this fine record was made possible
because of the large grants made for this work by the Federal govern-
ment . . . The future insofar as federal participation. in school house
construction is concerned, is very uncertain. Although great progress
has been made in recent years, the need is still very great. Conservative
estimates indicate that approximately $20,000,000 must be invested in
new school buildings in Kentucky within the near future, in order to

provide anything like adequate physical facilities for all school children
of the state.”

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11. Free Textbooks
“There has been available for the purchase of free textbooks in the

elementary grades the sum of $500,000 annually. With this amount of
money available, it has been possible to supply free textbooks to the first
seven grades and to part of the eighth grade (a total of 929,579 books).
These free textbooks are now being used by 560,000 pupils. The cost
per pupil per year is ninety cents. This is approximately one-third of
the cost per pupil when the parents were purchasing the books.”

12. Vocational Education
A. The number of vocational departments by fields for the biennium
was:

Year Agriculture Home Trades and Distributive Federal
Economics Industries Occupations Funds

1937-38 194 163 87 6 $293,415.72

1938-39 224 208 128 38 381,975.30

B. The number of all-day pupils enrolled in vocational agriculture
and vocational home economics for the biennium was:

Year Agriculture Home Economics
1937-38 5,882 6,615
1938-39 7,209 9,237

C. Mayo State Vocational School. “During the first special session
of the Legislature in 1938, a bill was passed to purchase part of the old
Mayo College buildings located in Paintsville and establish a vocational
school . . . The enrollment in the day class for the school year, 1938-39,
was 120 . . . Enrollment in evening trade extension classes was 330 . . .
Total disbursements were $56,507.03.”

D. West Kentucky Vocational Training School. “The school is
operated for the purpose of preparing Negro youth to enter occupations.
It was opened September 19, 1938 with a president, business manager,
and eight teachers. The total enrollment for the fiscal years, 1938-39,
was 301 students. Total disbursements were $35,310.09.”

13. Special Education

“Programs of special education are administered by the State Board
of Education, in cooperation with local school boards . . . Since the State
survey indicates there are approximately 5,000 homebound, mentally fit,
handicapped children between the ages of six and eighteen unable to
read and write, it becomes a very important obligation of the Common—
wealth to furnish funds to the State Board of Education in order that
this neglected group of crippled and otherwise handicapped children may
receive the same educational opportunities as the normal child.”

14. Vocational Rehabilitation

“A serious attempt has been made during the past four years to
provide for all types of handicapped persons in all phases of special
education. The federal act providing for Vocational Rehabilitation has

become a permanent provision and is included in the federal Social
Security Act. The Federal government has made $71,432.85 available
for this work in Kentucky while the State has appropriated $25,000.
During the fiscal years which ended July 1, 1939, 67 special teachers
and special supervisors were employed by local boards of education
to furnish training opportunities for homebound and other handicapped
persons.”

15. Pupil Transportation

“During the school year 1938—39, there were more than 1,600 ve-
hicles carrying approximately 90,000 children 60,000 miles daily at a
cost of approximately $1,317,000.”

Of the 1,605 vehicles used in pupil transportation, 1,530 were motor—
ized and 75 were horse drawn. In a four—year period, the number of
school buses had doubled; the number transported had increased from
58,000 pupils to 90,000 pupils.

“Transportation of pupils at public expense in large numbers is a
rather new educational responsibility in this state . . . Its growth during
the last two years is little less than phenomenal.”

To provide additional perspective, several measures used in the
rankings of states are reviewed:

1. The average annual salary of instructional staff in public schools
in Kentucky was $890 the second lowest among the neighboring states;
(Tennessee $862) the U. S. average, $1,408.

2. The current expenditure per pupil in average daily attendance
was $47, second lowest among the neighboring states (Tennessee, $44);
the U. S. average, $88.

3. Years of school completed by persons 25 years old and over for
the census year 1940: Kentucky and the United States:

Educational attainment (1940) Kentucky United States
No school years completed 4.1% 3.8%
Elementary school:
1-4 years 16.1 9.9
5—6 years 15.9 11.5
7 years 6.3 7.0
8 years 31.2 28.2
Less than High School 75.5% 60.4%
High School:
1—3 years . 9.7 15.2
4 years 8.4 14.3
College:
1—3 years 4.2 5.5
4 years or more 2.9 4.6

Median school years completed 8.2 (years) 8.6 (years)

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Recommendations Made by Superintendent Peters in 1939

In his biennial report for the school year ending June 30, 1939,
Superintendent Peters pointed out that there is an ever-increasing de-
mand from the people that the schools serve better the needs of the
children, and that we are now facing problems which are preventing
the schools from serving the children as they should. These problems
were presented with recommendations for their solution, as follows:

a. Increased State Aid
“There must. be an increase in the general state aid for the public
elementary and secondary schools.
“To partially meet the situation, the Legislature should
increase state aid for general school purposes to fifteen
dollars per census child, and Should remove the obstacles
to an increase in income from the local districts.”

b. Equalization Fund
“Many districts in Kentucky are forced to deny their children an
acceptable minimum school program, due to low income.
“The Legislature should provide for an equalization
fund in accordance with the program of the Kentucky
Education Association.”

c. Teacher Retirement
“The Teacher Retirement Law should be made operative.
“The Teacher Retirement Law. as recommended by the
Kentucky Education Association, should be restored
during the regular session of the 1940 Legislature, and
should provide an appropriation sufficient to make it
effective at once.”

01. Equal Opportunities for Colored Children
. “Provision should be made for equal opportunities for Negroes in
hlgher education.
“The Legislature should by appropriate legislation pro-
vide a program adequate to meet the needs of those
Negroes who desire education at higher levels.”

6. Preservation of 1934 School Code—Changes
“The essential features of the 1934 school code should be preserved.
(1) Selection of Textbooks
“It is recommended that all districts be given the right to
select the books and teaching materials to be used in
their schools in accordance with a uniform plan.”

(2) State Board of Education and Institutions of Higher
Learning

“It is recommended that this law should be changed so
that members of the State Board of Education and
Boards for Institutions of Higher Learning, may serve
out the term for which they were appointed unless re-
moved for generally accepted causes.”

f. Expansion of State Department of Education

“There should be provision whereby the State Department of Edu-
cation may render services in the following special fields:

Curriculum development
Elementary Education

Health and Physical Education
Public School Music

Public Relations.”

f Edu-

(CHAPTER Two

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BROOKER

JOHN W

III

VII

VIII

XII

XIII

XIV

XVI

OUTLINE OF MAJOR TOPICS INCLUDED IN CHAPTER TWO

Personal Data

List of Recommendations

Organization of Services of the Department
Legislative Activity

Teacher Education and Certification
Teacher Retirement

Pupil Transportation

Vocational Education

Free Textbooks

Census and Attendance

School District Finance

School Supervision

Vocational Rehabilitation and Special Education
Negro Education

School Lunch

Adult Education
Summary

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t TWO

JOHN W. BROOKER
1940-1944

John W. Brooker, son of John R. and Laura Evans Brooker, was
the twenty-sixth superintendent of public instruction of the Common—
wealth of Kentucky. He was born in Newport, Campbell County,
Kentucky, May 23, 1899.

He married Miss Hazel Sherritt of Scott County, Kentucky and they
had one daughter, Betty, (Mrs. Darrell Brothers) who has served as art
supervisor of Covington city schools.

He moved to Bracken County and was graduated from Augusta
High School in 1918. He received his Bachelor of Arts Degree from
Georgetown College in 1922 and his