xt7d513txj8c https://exploreuk.uky.edu/dips/xt7d513txj8c/data/mets.xml Kentucky. Department of Education. Kentucky Kentucky. Department of Education. 1952-03 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.), "The Historical Development and Present Status of Public High School Libraries in Kentucky 1908 to 1950", vol. XX, no. 1, March 1952 text
volumes: illustrations 23-28 cm. call numbers 17-ED83 2 and L152 .B35. Educational Bulletin (Frankfort, Ky.), "The Historical Development and Present Status of Public High School Libraries in Kentucky 1908 to 1950", vol. XX, no. 1, March 1952 1952 1952-03 2022 true xt7d513txj8c section xt7d513txj8c 0 Commonwealth of Kentucky
EnucAnoNAL BULLEII
THE HISTORICAL DEVELOPMENT AND
PRESENT STATUS OF PUBLIC HIGH
SCHOOL LIBRARIES IN KENTUCKY
I908 TO I950
Published by
DEPARTMENT OF EDUCATION
Wendell P. Butler
Superintendent of Public Instruction
ISSUED MONTHLY
Entered as second-class matter March 21, 1933, at the post office at
Frankfort, Kentucky, under the Act of August 24, 1912.
Vol. XX MARCH, I952 No.
I
LIBRARY
UNIVFPRITY {3V VENTUCKY
, :fifl"
THE HISTORICAL DEVELOPMENT AND
PRESENT STATUS‘OF PUBLIC HIGH
SCHOOL LIBRARIES IN KENTUCKY
I908 TO I950
stI
sh
tix
FOREWORD
The information contained in this bulletin was submitted by Miss
Louise Galloway, Supervisor of School Libraries in the Bureau
of Instruction, Department of Education, in partial fulfillment of
the requirements for the degree of Master of Science in the School
of Library Service, Columbia University.
Many studies have been made of public education in Kentucky
and of Kentucky public high schools, but information concerning
public high school libraries has been meager. For the first time,
significant information about the origin and growth of high school
libraries in Kentucky has been assembled and, through this publi-
cation, is being made available to school personnel throughout the
State.
It is hoped that administrators as well as librarians will read this
study carefully. These findings should increase knowledge and
understanding of this important feature of the school program and
should stimulate more activity toward the achievement of an effec-
tive program of school library service for every child in the State.
WENDELL P. BUTLER
Superintendent of Public Instruction
February 1, 1952
AGKNOWLEDGMEN TS
The writer would like to acknowledge, with appreciation, those
persons who have been especially helpful during the preparation of
this study.
Through the cooperation of the Superintendent of Public Instruc-
tion, Mr. Boswell B. Hodgkin, all of the printed materials and the
records in the Kentucky Department of Education Were made
available for examination.
As a result of his twenty—five years of service in the Department
of Education, for many years as High School Supervisor and cur-
rently as Head of the Bureau of Instruction, Mr. Mark Godman
recalled many valuable items of information which led to helpful
interviews with librarians and educators who had participated in
the development of secondary school libraries in the State. Discus-
sions with Mr. Godman also caused the unearthing of historical data
which otherwise would not have been found since, to the writer’s
knowledge, continuous files of bulletins and reports have not been
maintained by any agency in the State.
Although it has been impossible to use all of the data secured
in interviews and by letter from many librarians and educators, all
of the information has increased the writer’s understanding of the
subject and has made a contribution to the study.
This study was developed under the guidance of Dr. Lowell
Martin, Associate Dean, School of Library Service, Columbia
University.
TABLE OF CONTENTS
Page
INTRODUCTION
Scope of the Study ......... V 11
EDUCATIONAL BACKGROUND
Attitudes Toward Public Education in Pioneer Kentucky ..................... 15
Efforts to Establish a State System of Common Schools .......... 16
Establishment and Growth of Public Academies, 1792 to 1820 ........... 17
Establishment and Growth of Private Academies, 1810 to 1890 ........ 18
Growth of System of Common Schools, 1850 to 11908 ............................ 19
Efforts Toward Adequate Financial Support ........................................ 20
Accelerated Growth of City and Graded School Districts Over
County School Districts _ 21
Influence of the Office of State Superintendent of Public
Instruction . 22
Growth of the State Department of Education ............................ 24
Establishment and Growth of Public High Schools, 1908 to 1950 ...... 24
Recent Developments in Public Education ............................................ 28
Summary 29
HISTORY OF HIGH SCHOOL LIBRARIES
High School Libraries before 1908 ............................................................ 32
Growth of Libraries, 1908 to 1930 ..... 35
Emphasis Placed on Libraries through Bulletins Issued by the
Department of Education. ........ 36
Influence of the Kentucky Library Commission ............................ 37
Establishment and Early History of High School Libraries in
Louisville 39
Changing State Standards for Approving and Accrediting High
Schools 44
Implementation of Standards _ 48
Recent Developments in High School Libraries, 19310 to 1950 ............ 52
Campbell’s Study. 53
Inauguration and Growth of Library Training. Agencies ............ 54
State Supervision of School Libraries, 1933 to 1937, and Its
Influence on Library Development ............. 56
Organizations of School Librarians Within the State ........................ 59
Meager Progress in School Library Development, 1937 to 1947.... 63
Reestablishment of State Supervision of School Libraries ............ 66
Evidences of Extended Efforts in Behalf of School Library
Development, 1947 to 1950 68
Summary 77
KENTUCKY HIGH SCHOOL LIBRARIES IN 1950
Financial Support for High School Libraries ................. 83
Library Science Training of the Librarians ........................................ 86
Amount of Time Librarians Devote to Administering the Library... 87
Location of the Library ......................................................... 94
Numerical Adequacy of the Book Collection .......... 96
Maintenance of Accession or Shelf-List Records .................................... 97
Extent to Which Schools Surveyed Met Old and New Standards in
All Areas Investigated .................................................................................. 97
Summary ............................................................................................................. 100
CONCLUSIONS AND RECOMMENDATIONS ________________________________________ 105
APPENDICES
A. High School Library Standards Adopted in 1940 ............................ 109
B. High School Library Standards Adopted in 1949 ............................ 111
C. Library Section of the Annual High School Report ________________________ 115
LIST OF SOURCES CONSULTED ................................................................ 115
k;
X1
X1
""""""""" II
III
IV
VI
VII
VIII
IX
XI
XII
XIII
XIV
LIST OF TABLES
Page
ANALYSIS BY RACE AND CONTROL OF COMPLETE
KENTUCKY HIGH SCHOOLS AND SAMPLE OF SCHOOLS
IN 1949—50 ..............
ANALYSIS BY ENROLLMENT, RACE, AND CONTROL OF
COMPLETE KENTUCKY HIGH SCHOOLS AND SAMPLE
OF SCHOOLS IN 1949— 50 ......................................................................
NUMBER AND PERCENTAGE OF 102 SOUTHERN ASSO-
CIATION HIGH SCHOOLS IN KENTUCKY MEETING THE
REVISED LIBRARY STANDARDS OF THE ASSOCIATION
IN 1930 _______________________________________________________________________________________________________
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING EARLIER STANDARD FOR
LIBRARY APPROPRIATON (1949-50) ............................................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING PRESENT STANDARD FOR
LIBRARY APPROPRIATION (1949—50) ........................................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING EARLIER STANDARDS FOR
LIBRARY SCIENCE TRAINING OF LIBRARIANS (1949—50)
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING PRESENT STANDARDS FOR
LIBRARY SCIENCE TRAINING OF LIBRARIANS (1959-50)
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING EARLIER STANDARDS FOR
AMOUNT OF SERVICE OF LIBRARIANS (1949—50) ................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING PRESENT STANDARDS FOR
AMOUNT OF SERVICE OF LIBRARIANS (1949-50) ..................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING PRESENT STANDARD FOR
LOCATION OF LIBRARY (1949—50) ...............................................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING STANDARD FOR NUMBER OF
BOOKS IN COLLECTION (1949-50) ................................................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING STANDARDS FOR ACCESSION
OR SHELF-LIST RECORD OF HOLDINGS (1949—50) ................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING ALL EARLIER STANDARDS
SELECTED FOR STUDY (1949—50) ................................................
NUMBER AND PERCENTAGE OF SAMPLE OF KENTUCKY
HIGH SCHOOLS MEETING ALL PRESENT STANDARDS
SELECTED FOR STUDY (1949-50) ................................................
13
14
54
84
85
88
89
92
93
95
98
99
101
102
INTRODUCTION
It is generally recognized that the school library is one important
phase of the total educational program. It is both a teaching and
service agency which can make a vital contribution to the improve-
ment of the instructional program and to the recreational needs
and interests of the pupils which it serves.
Thus far no overall study of the school library situation in
Kentucky has been made. The facts which have previously been
assembled concerning school libraries in the state present only a
partial picture. The only available scientific analysis is Clardy’s
study which is confined to a consideration of the contribution of
state supervision to school library development in Kentucky.1 The
investigation covered the period from 1933 to 1941. In 1935, the
Department of Education issued an explanatory report which
covered certain phases of school libraries for a part or all of the
period from 1927 to 1934.2 This was largely a statistical resume.
Much has been written about public education in Kentucky, but
there is bare, mention of school libraries. This is equally true whether
the scope of the subject includes the entire state, one school system,
or a particular phase of the educational system.
The dearth of assembled material concerning Kentucky school
libraries indicates that there is a need for a study which will organize
and analyze data relative to their historical development and present
status. Such an investigation should result in conclusions and recom-
mendations which will aid in advancing school library development
throughout the State.
Scope of the Study—This investigation will be confined to an
analysis of public white and Negro high school libraries in Ken—
tucky from the establishment of a state—wide system of high schools
in 1908 to the present time. A brief survey of public education in
Kentucky will be included. since school libraries are a part of the
educational program and of necessity are affected by its develop-
ment. This latter information has been taken, almost entirely, from
secondary sources.
1C1ardy, M. F.' Contribution of state supervision to school library de-
velopment in.Kentuck_v. Master’s essay. School of Library Service,
a Columbia University, 1948. Typewritten manuscript.
"Kentucky. Department of education. Library service available to the
public schools of Kentucky. Educational bulletin, vol. II, no. 11.
January, 1935.
11
The historical development of high school libraries will be traced
through an examination of available records and interviews with
experienced librarians and educators. The printed data have been
secured largely from biennial reports of the superintendent of public
instruction, Department of Education bulletins, State Board of
Education minutes, minutes of the Accrediting Commission of the
Kentucky Association of Colleges and Secondary Schools, proceed—
ings of the Southern Association of Colleges and Secondary Schools,
and bulletins of the Kentucky Library Association and the Ken-
tucky Education Association. Additional information has been
secured through interviews with school librarians and educators who
have observed and worked in Kentucky’s educational system for
more than a quarter of a century.
Through a detailed analysis of the libraries in 15l of the 5013
complete public high schools, the present status of high school
libraries in Kentucky will be determined. The Department of Educa-
tion uses the term complete high school. to mean one which offers
work through the twelfth grade. It may be a three, four. or six—year
high school. i
The 151 high schools whose libraries were chosen for study
include schools from all geographical areas of the state. The dis-
tribution of the schools in terms of race, control, and enrollment.
compares favorably with the total number in each category. Tables
I and II verify this statement. Data on this sampling of libraries
have been secured from the Annual High School Reports which are
on file in the Department of lilducation.4 This is the official high
school record. This selected group of libraries will be evaluated
against the current State Board of Education standards which were
adopted in 19495 and also against the standards which were pre—
viously in effect.“
3Kentucky. Department of education. Kentucky high schools. 1949—50.
Educatmnal bulletin, vol. XVIII, no. 2, April, 1950, p. 28.
‘ A copy of the library section of the 1949-50 Annual High School Report
has been placed in Appendix C.
“Kentucky. State board of education. Minutes. March 19, 1949. A copy of
the high school library standards has been placed in Appendix B.
“ Kentucky. Department of education. Kentucky library manual for high
schools. Educat1onal bulletin, vol. IX, no. 5. July 1941.
A copy_ of the high school library standards has been placed in
Appendlx A.
12
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TABLE I
ANALYSIS BY RACE AND CONTROL OF COMPLETEa KENTUCKY HIGH SCHOOLS
AND SAMPLE OF SCHOOLS IN 1949-50
City High Schools Total
County High Schools
Total Sample Total Sample Total
Sample
3me
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we
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we
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$2.852
038mm
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$9.832
Race
Hm
67.5 335 66.9 32 21.2 112 22.3 134 88.7 447 89.2
102
White
10.8
54
14 9.3 45 9.0 17 11.3
1.8
2.0
Negro
69.5 344 68.7 46 30.5 157 31.3 151 100.0 501 100.0
105
Total
rough the
a The Department of education uses the term complete high school to mean one which offers work th
twelfth grade.
713
TABLE II
ANALYSIS BY ENROLLMENT, RACE, AND CONTROL OF COMPLETEa KENTUCKY HIGH SCHOOLS
AND SAMPLE OF SCHOOLS IN 1949-50
County High Schools City High Schools Total
Number in Number in Number in Number in
Sample State Sample State In Sample In State
G) a.)
no be
H .52 h .3
Enroll ent 0 o a) o a) o a) o g a .8 g
m s a a E as 2 a 2 a g g
d.) a.) OJ 0)
‘E z 3 z 3 z 3 z z 63 z E
Below 100 14 2 57 6 .. 4 6 20 20 13.2 89 117.8
100-300 77 1 231 3 17 9 63 22 1104 68.9 319 63.6
301-500 9 35 11 1 25 2 21 13.9 62 12.4
501 and above 2 12 4 18 1 6 4.0 31 6.2
Total 102 3 ' 335 9 32 14 112 45 151 100.0 501 100.0
aThe Department of education uses the term complete high school to mean one which offers work through
the twelfth grade.
car 4| ._;,_.—p,_._ p—lJt—JHJHJ-g hm...
aThe Department of education uses the term complete high school to mean one which offers work through
the twelfth grade.
EDUCATIONAL BACKGROUND
Information about the origin and growth of public high school
libraries has little meaning without a knowledge of the evolution
of the system of common schools. The growth of these libraries is
determined largely by the character of the development of the
total educational program.
Attitudes Toward Public Education in Pioneer Kentucky—The
first two Kentucky constitutions, 1792 and 1799, made no provision
for public education. Records of the convention prior to adopting
the first constitution do not show that the subject was even dis-
cussed.7 This seeming neglect of public education is not strange
when the facts are considered. M. E. Ligon, in A History of Public
Education in Kentucky, contends that the reasons for this lack of
interest “are deep-rooted and must be sought in the social, economic,
and religious life of Virginia and of England.“
For the period covering the colonization of Virginia, educa-
tion for the common people in England was provided through pri-
vate and parochial schools which were supported by endowment
funds, fees, church tithes, and subscriptions. \Vhen schools de-
veloped in Virginia they followed the pattern of those in the
mother country. As a result, schools for the masses were few and
poor. Early'Kentucky settlers were still predominantly English
with ideas which were little modified by a few generations in eo-
lonial Virginia.
There were many conditions in the early development of Ken»
tucky which tended to encourage the perpetuation of the English
system of education and thereby delay development of a state sys—
tem of public education. The following have been summarized from
l'iigon’s discussion :9
1. The attention of the settlers was focused upon founding homes,
clearing land, and developing agriculture. The population was
scattered over a large area with poor means of communication.
2. Three classes of society developed: slave-owners who claimed
the best land, set up a plantation life similar to that in Virginia,
and controlled public affairs; white people of a poorer class,
the non—slave owners who occupied smaller tracts of land which
they cultivated themselves; and, the slaves of the planters. The
7Ligon, M. E. A history of public education in Kentucky. Lexington,
Kentucky, College of education, University of Kentucky, 1942. (Bul-
letin of the Bureau of school service, vol. XIV, no. 4. June 1942) p. 13.
3 Ibid. p. 14.
" Ibid. p. 14-16.
15
influential planters’ attitude toward education was that it was
a matter of private and church concern, not a concern of the
state.
3. The religious tenets of the people tended to delay the develop-
ment of public education. A large majority of the population
was made up of Baptists, Methodists, and Presbyterians. They
held divergent views about the purpose, extent, and control of
education. These conflicting opinions kept the people in a state
of turmoil and controversy.
4. The slave society developed a caste system which violated the
principle of political equality and tended to perpetuate the
English theory of education.
5. The lack of federal encouragement served as an additional fac-
tor in retarding public education. In the ordinance of 1785
Congress provided that in the distribution of the public lands,
a portion of every township should be reserved for the main-
tenance of public schools. Unfortunately, in Kentucky the land
was not distributed by the operation of the federal land laws.
Consequently, the state did not have this source of income for
public schools, nor this constant reminder urging it to make
provision for education.
Efforts to Establish a State System of Common Schools—e111
1838 the legislature enacted a law which some historians mark as
the beginning of the public school system in Kentucky. McVey dis-
counts this on the basis that “the law of that year was only a recog-
nition of a proposed school fund arising from the distribution of the
federal surplus of 1837, and the law compelled neither the support
nor the supervision of public education.”10 The act included other
provisions which established a framework for the school system.
Provision was made for a State Board of Education composed of
the Secretary of State, the Attorney General, and the Superintend-
ent of Public Instruction; The latter was to be appointed by the
governor for a period of two years.
The public school system was made a part of the state’s 01'-
ganic law by being included as article eleven in the 1850 constitu-
ltion. Many writers consider this to be the date of the beginning
of Kentucky’s public education. Ligon says, “The state had been
without a system of common free schools throughout its existence
to 1850711 In the Department of Education’s bulletin, “A Century
of Education in Kentucky, 1838-1938,” there appears this state-
ment: “It was during the administration of Superintendent Breck—
‘° McVey, F. L The gates open slowly, a history of education in Ken-
tucky. Lexmgton, University of Kentucky press, 1949. p. 47.
“ Op. cit. p. 119.
16
_ .:(.
i that it was
ncern of the
the develop-
e population
trians. They
1d control of
ple in a state
violated the
rpetuate the
lditional fac-
ince of 1785
public lands,
or the main-
Lcky the land
a1 land laws.
if income for
r it to make
>
Schools—«In
ins mark as
MoVey dis-
)nly a recog-
nition of the
the support
eluded other
hool system.
composed of
Superintend-
inted by the
c state’s or-
350 constitu-
ie beginning
Lte had been
its existence
“A Century
s this state-
ident Breck—
ation in Ken-
p. 47.
inridge [1848 to 1854] that the school system became fully estab—
lished.”12 Although the third constitution in 1850 recognized and
made provision for a public school system, “there was no mandate in
that document which required the legislature to levy a tax for school
purposes.”13
According to l\"lcVey, “The real beginning of public education
in Kentucky can be dated from 1870 when an act was passed by
the legislature implementing the paper system set up by the legis-
lature in. 1838”“1 The legislature, however, repeatedly declined to
levy taxes for school purposes. On four different occasions—in
1849. 1855, 1860. and lSSZ—by large majorities, the people approved
propositions to levy state taxes for school purposes. Thus, by popu-
larly imposed levies, the income of the common schools was in-
creased.15
Tn the fourth and present constitution, 1891, there appeared
the first mandate which required the legislature to provide for an
efficient system of common schools and to appropriate to them the
income from the common school fund and any sum which may be
levied by taxation for such purposes.16 Even then, “no general
taxes were levied by legislative act compelling the support and the
establishment of public schools until 1904.”17 It was not until 1908
that this was made general for all local units.]8
lt is evident that the legislatures, during this period, failed to
take seriously the wishes of the majority. From these facts it is
apparent that “the public school system in Kentucky, viewed as a
going concern with full powers to carry on, is not yet fifty years
old.”19
Establishment and Growth of Public Academies, 1792 to 1820.—
The absence of any provision for education in the constitutions of
17.02 and 1799 was consistent with the. widespread belief of Ken-
tucky pioneers that education was a matter of private concern.
Following the precedent of Virginia, the legislature authorized the
12Kentucky. Department of education. A century of education in Ken-
tucky, 1838-1938. Educational bulletin, vol. VI, no. 3, May, 1938. p. 20.
‘“ McVey, op. cit. p. 47.
“ Ibid. p. 16.
‘5 Kentucky educational commission. Public education in Kentucky.
New York, General education board, 1921. p. 7-8.
”‘ Kentucky. The fourth constitution of the Commonwealth of Kentucky.
Section 183—89.
1' McVey, op. cit. p. 16.
‘8 Kentucky educational commission, op. cit. p. 8.
1"McVey, op. cit. p. 48.
17
establishment of academies on petition of the citizens in communi-
ties desiring them. “The acts of the General Assembly in the au-
tumn of 1797 indicate that public sentiment was centered about
the county academy as a means of providing a system of public
education.”20
During the year of 1798, the establishment of twenty acad-
emies was authorized by the legislature and each of these was en—
dowed with six thousand acres of land. \Vith the enactment of a law
which provided that counties in which academies had not been
located should have “located, surveyed, and patented six thousand
acres of unappropriated land for the use of counties when they did
establish them,”21 it was clear that the legislature intended to
provide for the establishment of an academy in each county of the
state. Since land was plentiful and money was scarce it was not
difficult for the legislature to appropriate land for these schools.
These public academies were regarded as schools of higher
learning. Today'they would be known as secondary schools. All
of them, however, had departments of the lower grades. All of
them charged tuition. This meant that their students were almost
entirely from homes of the people who could afford such an expense.
Other sources of financial support were fines imposed by the county
courts, funds raised by lottery, incidental student fees in addition
to the tuition, and in a few instances, local taxes. The legislature
made small appropriations to several of the public academics to
encourage local effort in support of schools.”
The county academies failed as a means of providing a system
of public education for the masses. However, the absence of an
effective system of common schools encouraged the establishment of
private schools.
Establishment and Growth of Private Academies, 1810 to 1890.
—As early as 1825 the legislature enacted a law which made it legal
for five people in a community to organize a private school.23 Before
1820 the records indicate that only three private academies had
been authorized in Kentucky.24 These schools were chartered by the
legislature in a manner similar to the way in which the public
academies had been. Churches. stock companies, and private indi-
”° Ligon, op. cit. p. 18.
”1 Ibid. p. 19.
3” Ibid. p. 24-26.
3“ Ibid. p. [39].
"" Ibid. p. 40.
18
vi
as
va
T}:
Ch
€a(
ter
est
me
of
nee
ten
con
the
in l
of t
hea
bee]
pro;
ents
Witl
caus
was
syste
a m
tardt
Robe
muni-
1e au—
about
public
acad-
'as en—
E a law
t been
ousand
my did
(led to
of the
vas not
schools.
higher
1s. All
All of
. almost
gxpense.
1 county
iddition
gislature
amies to
L system
3c of an
iment of
to 1890.
e it legal
3 Before
nies had
ed by the
ne public
vate indi-
viduals owned and controlled private academies, charging tuition
as one means of support.
The belief by many people that education was a matter of pri—
vate concern advanced the development of these private academies.
They were at the height of their development from 1850 to 1880.25
Children of the poor attended public schools for three or four months
each year, while children of more financially fortunate families at—
tended private school for eight to ten months. Private schools were
established as secondary schools, but nearly all of them had ele—
mentary departments. Since they provided education for children
of well—to—do families, and since education was conceived of as a
need only for the elite, it would appear that these private schools
tended to delay the establishment of an efficient state system of
common schools.
Growth of System of Common Schools, 1850 to 1908.—During
the growth and decline of the public and private academies, efforts
in behalf of public education were being continued. Had a majority
of the people been in sympathy with the idea and given their whole-
hearted support to improving and extending the system which had
been provided in the constitution of 1850, greater and more rapid
progress could have been made. As it was, successive superintend-
ents of public instruction and other interested leaders in education,
with varying degrees of effectiveness, struggled to advance the
cause of a system of common schools.
Even though Kentucky had declared her neutrality, the state
was greatly affected by the Civil \Var. Before this time, the
system of public education had been established and placed upon
a working basis.26 However, the impact of this internal strife re-
tarded the advancement of the educational system. Superintendent
Robert Richardson, in his annual report of 1861. said :27
In a few months it [the war] reduced the number of children in
attendance on our public schools from 165,000 to about 90,000;
withholding for a time the means of knowledge from about 75,000
of the youth of this Common-wealth. Our cherished system of
common school education has been arrested by it and thrown back—
wards—~the retrograde movement of a few months equalling the
progress of just ten years. An annual school fund, from all
sources, of about $340,000 has been reduced by it in a brief period
2“ Ibid. p. 51.
Ibid. p. 109.
”7 Kentucky. State board of education. Annual report of the superin-
tendent of public instruction, 1861. p. 6-7.
19
to but little upwards of $200,000. Funds dedicated and set apart
for the mental improvement of our youth have been seized upon,
and wickedly misappropriated by those who invaded or connived
at the invasion of Kentucky—Not only in isolated districts, but in
some instances entire counties have been utterly prevented from
keeping up a single school and reporting it to this department.
With the end of the war, economic, social, and political problems
claimed the attention of the people. Again, any serious considera
tions concerning education were forced into the background.
Efforts Toward Adequate Financial Support—In 1860, the State
provided one dollar per capita for the education of its children.28
These state funds could be used only for the payment of teachers’
salaries.29 Money with which to meet any of the other expenses
of operating schools had to be secured elsewhere. in 1864, 1871,
1884, 1886, and 1893, legislation was enacted which enabled the
people to vote local taxes for the support of schools.30 However,
the people of the districts did not take advantage of the opportunity.
It was evident to the various state superintendents that funds
from local taxation must be provided, in addition to the state funds,
in order to strengthen the system. Superintendent H. A. M. Hen-
derson, in his annual report of 1877 said:31
. . . the schools of Kentucky can only be made the equal of other
states whose success we admire, and covet for ourselves, by doing as
they have done, namely, cease to rely solely upon an insufficient
and variable state bonus, and by district taxation raise the neces-
sary funds to lengthen the term and improve the character of the
district school.
As late as 1895 this problem was still present, delaying the
growth of a strong state system of education. In his biennial report
2’3Ligon, op. cit. p. 113.
7" This is true even today (1950). There is a separate, special fund
amounting to 17.5 per cent of the total common school fund which may
be dlstributed to districts on an equalization basis. Amendments to
the constitution, adopted in 1941 and 1949, have made this possible.
The latter amendment allows the legislature to appropriate to this
fund an amount of not more than 25.0 per cent of the total of the
common school fund. However, in their meeting in 1950,'legislation
M was enacted authorizing only up to 17.5 per cent.
Kentucky. .Acts of the general assembly, 1865. Chapter 1243, p. 72.
Ibid. 1871. Chapter 1530, p. 57.
Ibid. 1883—84. Vol. 1, chapter 1330, p. 113.
Ibid. 1885-86. Vol. I, chapter 1224. p. 129.
M Ibid. 1891-92—93. Chapter 67, p. 176.
Kentucky. Legislative documents, 1877. Document No. 2, p. 35,
2J3
i set apart
ized upon,
r connived
icts, but in
anted from
irtment.
1 problems
considera
)und.
), the State
children.28
f teachers’
r expenses
1864, 1871,
nabled the
However,
pportunity.
that funds