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Ronald Reagan Presidential Library
Digital Library Collections
This is a PDF of a folder from our textual collections.
Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: Issue Papers - Education (1 of 2)
Box: P30
To see more digitized collections visit:
https://reaganlibrary.gov/archives/digital-library
To see all Ronald Reagan Presidential Library inventories visit:
https://reaganlibrary.gov/document-collection
Contact a reference archivist at: [email protected]
Citation Guidelines: https://reaganlibrary.gov/citing
National Archives Catalogue: https://catalog.archives.gov/
AID TO EDUCATION DURING GOVERNOR RONALD REAGAN'S ADMINISTRATION
Feb. 1974
California's Financial Support for Public Education
(1966-67 to Proposed 1974-75 Budget)
1/Budget
Budget
State Support
% Envollment
Year 1966-67
Year 74-75 (Est)
Has Increased
Has Increased in
(Prior Admin.)
(Reagan Admin.)
in 8 Years
8 Years (FTE or ADA)
State Colleges
$ 167.7
$ 480.2
$--Up 312.5
(Universities)3/
Million
Million
Million
Up 78.4%
%-Up 163.6%
U.C. System3/
$ 240.1
$ 493.2
$--Up 253.1
Million
Million
Million
Up 43.9%
%--Up 105.4%
Junior Colleges4
$ 74.4
$ 314.8
$--Up 240.4
Million
Million
Million
Up 83.5%
%--Up 323%
State Student
$
4.7
$ 43.0
$--Up 38.3
Scholarships &
Million
Million
Million
Loans, including
%--Up 914.9%
Administration
State Funds for
$1.231
$2.691 1
$--Up 1.459
Public Schools
Billion
Billion
Billion
(K-145/
Up 10.6%
%--Up 118%
State General
$1.154
$2.371
$--Up 1.217
Funds for Public
Billion
Billion
Billion
Up 5.0%
School Education
%--Up 105%
(K-12)6/
1/ 1966-67 was the final budget year of the previous administration.
2/ All figures are those proposed in the 1974-75 Governor's Budget.
3/ Figures for U.C. and State Colleges include operational budget plus faculty salary increases
for 1974-75.
4/ 1974-75 figures for Community Colleges include funds for the Board of Governors of the Community
Colleges.
5/ Figures include both State Operations and Local Assistance budgets for Education, K-14, all funds.
6/ Figures include both State Operations and Local Assistance budgets for Education, K-12, General
Fund costs only.
1973
AID TO EDUCATION DURING GOVERNOR RONALD REAGAN'S ADMINISTRATION
California's Financial Support for Public Education
(1966-67 and Present 1973-74 Bulget)
(a) Budget
Budget*
State Support
% Enrollment***
Year 1966-67
Year 73-74 (Est)
Has Increased
Has Increased in
(Prior Admin.)
(Reagan Admin.)
in 7 Years
7 Years
State Colleges
$167.7
$442.1
$--Up $274.4
(Universities)
Million
Million
Million
Up 81.2%
%--163.6
Junior Colleges****
$ 74.4
$219.3
$--Up $144.9
Million
Million
Million
Up 78.8%
%--Up 195%
U.C System
$240.1
$429.6**
$--Up $189.5
Million
Million
Million
Up 38.6%
%--Up 78.9%
State Student
$ 4.7
$ 38.6
$--Up $ 33.9
Scholarships &
Million
Million
Million
Loans, including
%--Up 721.3%
Administration
State Funds for
$1.218
$2.446
$--Up $1.228
Public Schools
Billion
Billion
Million
Up 11.1%
(K-14)
%--Up 102%
State General +
$1.140++
$2.199
$--Up $1.059
Funds for Public
Billion
Billion
Million
Up 5.7%
School Education
%--Up 92.9%
(K-12)
*All figures as proposed in 1973-74 Governor's Budget.
**U.C. and State Colleges include operational budget plus faculty salary increase for 73-74.
***73-74 FTE or ADA enrollment compared to 66-67.
+Includes textbooks, teacher retirement funds, special programs, (includes SB90).
++K-12 General Fund costs only;
a-1966-67 was final budget year of the previous administration.
****Includes funds for Board of Governors of Community Colleges.
AID TO EDUCATION DURING GOVERNOR RONALD REAGAN'S ADMINISTRATION
California's Financial Support for Public Education
(1966-67 and Present 1973-74 Bulget)
(a) Budget
Budget*
State Support
% Enrollment***
Year 1966-67
Year 73-74 (Est)
Has Increased
Has Increased in
(Prior Admin.)
(Reagan Admin.)
in 7 Years
7 Years
State Colleges
$167.7
$442.1
$--Up $274.4
(Universities)
Million
Million
Million
Up 81.2%
%--163.6
Junior Colleges****
74.4
$219.3
$--Up $144.9
Million
Million
Million
Up 78.8%
%--Up 195%
U.C System
$240.1
$429.6**
$--Up $189.5
Million
Million
Million
Up 38.6%
%--Up 78.9%
State Student
$ 4.7
$ 38.6
$--Up $ 33.9
Scholarships &
Million
Million
Million
Loans, including
%--Up 721.3%
Administration
State Funds for
$1.218
$2.446
$--Up $1.228
Public Schools
Billion
Billion
Million
Up 11.1%
(K-14)
%--Up 102%
State General +
$1.140++
$2.199
$--Up $1.059
Funds for Public
Billion
Billion
Million
Up 5.7%
School Education
%--Up 92.9%
(K-12)
*All figures as proposed in 1973-74 Governor's Budget.
**U.C. and State Colleges include operational budget plus faculty salary increase for 73-74.
***73-74 FTE or ADA enrollment compared to 66-67.
+Includes textbooks, teacher retirement funds, special programs, (includes SB90).
++K-12 General Fund costs only;
a-1966-67 was final budget year of the previous administration.
****Includes funds for Board of Governors of Community Colleges.
AID TO EDUCATION DURING GOVERNOR RONALD REAGAN'S ADMINISTRATION
California's Financial Support for Public Education
(1966-67 and Present 1973-74 Bulget)
(a) Budget
Budget*
State Support
% Enrollment***
Year 1966-67
Year 73-74 (Est)
Has Increased
Has Increased in
(Prior Admin.)
(Reagan Admin.)
in 7 Years
7 Years
State Colleges
$167.7
$442.1
$--Up $274.4
(Universities)
Million
Million
Million
Up 81.2%
%--163.6
Junior Colleges****
74.4
$219.3
$--Up $144.9
Million
Million
Million
Up 78.8%
%--Up 195%
U.C System
$240.1
$429.6**
$--Up $189.5
Million
Million
Million
Up 38.6%
%--Up 78.9%
State Student
$ 4.7
$ 38.6
$--Up $ 33.9
Scholarships &
Million
Million
Million
Loans, including
%--Up 721.3%
Administration
State Funds for
$1.218
$2.446
$--Up $1.228
Public Schools
Billion
Billion
Million
Up 11.1%
(K-14)
%--Up 102%
State General +
$1.140++
$2.199
$--Up $1.059
Funds for Public
Billion
Billion
Million
Up 5.7%
School Education
%--Up 92.9%
(K-12)
*All figures as proposed in 1973-74 Governor's Budget.
**U.C. and State Colleges include operational budget plus faculty salary increase for 73-74.
***73-74 FTE or ADA enrollment compared to 66-67.
+Includes textbooks, teacher retirement funds, special programs, (includes SB90).
++K-12 General Fund costs only;
a-1966-67 was final budget year of the previous administration.
****Includes funds for Board of Governors of Community Colleges.
State of California
Edus
Memorandum
To
:
Ed Gray
Date : March 20, 1973
Subject: Attached chart
From :
Alex C Sherriffs
This is a page from the Ford Foundation Program for Research
in University Administration report, An Economic Theory of
Ph.D. Production: The Case at Berkeley, by David W. Breneman.
It indicates how many graduate years are involved in getting
a Ph.D. at Berkeley. You will note that Entomology requires
a modest 5.02 years on the average (making nine years of col-
lege education), where Philosophy requires 18.78 years on the
average (making 22.78 years of college education). There is
not only dollar waste involved here, there is human waste.
ACS: sd
Attachment
TABLE III: SEVEN YEAR ENROLLMENT AND DEGREE TOTALS,
lity
UNIVERSITY OF CALIFORNIA, BERKELEY, 1961-67*
COLUMN A
COLUMN B
Ph.D.
Ph.D.
a
Degrees per
Student Years
DEPARTMENT
Degrees
Student Years
Student Year
per Degree
Awarded
(Col A/Col B)
(Col B/Col A)
Entomology
79
397
.198
5.02
Chemistry
335
1802
.185
5.38
Chemical Eng.
75
404
.185
5.39
Electrical Eng.
175
1032
.169
5.90
Civil Eng.
129
763
.169
5.91
Physics
380
2438
.155
6.42
Zoology
94
634
.148
6.74
Botany
52
352
.147
6.77
Geology
37
270
.137
7.30
29
Biochemistry
63
469
.134
7.44
Geography
21
158
.132
7.52
Mechanical Eng.
94
716
.131
7.62
Psychology
162
1238
.130
7.64
Astronomy
32
246
.130
7.69
Spanish
18
150
.120
8.33
ions
History
177
1517
.116
8.57
of
Math
194
1680
.115
8.66
Classics
13
118
.110
9.08
German
24
219
.109
9.12
Bacteriology
17
157
.108
9.24
Economics
137
1316
.104
9.61
es
Anthropology
69
720
.095
10.43
Political Sci.
96
1026
.093
10.69
at
Physiology
24
267.
.089
11.12
ish
English
105
1374
.076
13.09
Sociology
57
753
.075
13.21
French
28
374
.074
13.36
Philosophy
27
507
.053
18.78
id
a
Enrollment figures are understated for those departments that require doc-
toral students to first earn the M.A. degree - those student years are not
recorded. Enrollments include both degree and non-degree winners.
*Source: Office of Institutional Research, University of California, Berkeley.
A 6-YEAR ASSESSMENT
Changing University
a Look at Reagan Era
BY WILLIAM TROMBLEY
Times Education Writer
For six years Gov. Reagan has
Gov. Reagan came into office at
feuded with the state's higher edu-
cation community, especially with
the end of a golden period in Califor-
the University of California. The
nia higher education. For 2 decade
governor contends that his policies
there had been remarkable, seem-
have helped restore order to the
ingly unlimited growth.
troubled campuses and that his lean
budgets have not damaged educa-
The University of California added
tion quality.
three new campuses (Irvine, San
But in the universities and col-
Diego and Santa Cruz), trans-
leges it is widely believed that Rea-
formed Davis and Santa Barbara
gan's budget policies and frequently
Effective Campaign
from small campuses with limited
Barsh attacks have been damaging
Reagan campaigned effectively in
missions into large, general univer-
to the institutions and have under-
the fall of 1966 on a promise to clean
sities and added to the already con-
mined public confidence in tax-sup-
up "the mess at Berkeley," though it
siderable reputations of UC Berke-
ported higher education. The accom-
was not clear what action he would
ley and UCLA.
panying article, by a senior Times
take to do SO.
Three expensive new medical
education writer who has reported
(At one point the candidate pro-
schools were started - at Davis,
on higher education in California for
posed an investigation by a blue-rib-
Ivine and San Diego. Research insti-
seven years, attempts to assess Rea.
bon committee headed by former
tutes spouted on all campuses, large-
gan's impact.
CIA Director John McCone, but he
ly financed by the whopping federal
dropped this idea after being elect-
grants which became available in
Signs of Trouble in 1960s
ed.)
the sciences and engineering, and to
a lesser extent in the social sciences,
"If you look at the policies that be-
"What's the 30-second answer to
in the '50s and '60s.
gan to bubble up in the early 1960s
the 'mess at Berkeley' thing?" an an-
you could see signs of financial trou-
guished Tom Braden, the liberal
A growth plan was approved
ble," said Prof. Neil J. Smelser, a UC
Democrat who headed the State
which envisioned three more new
Berkeley sociologist who has just
Board of Education under former
campuses and a total enrollment of
completed a study of California
Gov. Edmund G. (Pat) Brown, asked
300,000 by the end of the century.
higher education in the '60s.
this reporter during a chance encoun-
The state colleges added six new
"There was already talk of tuition,
ter at the Oakland Airport during
campuses and made the sometimes
and the university's change from
the 1966 campaign.
difficult transition from teachers'
the semester to the quarter system
"Reagan is killing us on television
colleges to liberal arts institutions.
was more to save money than any-
with that line."
The number of two-year community
thing else."
The Democrats never found the
colleges leaped from 60 in 1955 to 76
The experts who drew up Califor-
answer.
a decade later.
nia's Master Plan for Higher Educa-
Student attitudes were changing,
Bond Issues Approved
tion in 1959 believed that the state
too. The large, impersonal campuses
Enrollment boomed and financial
could pay the bill for a continuing
which California built to satisfy the
support seemed to be solid. Taxpay-
rapid expansion. But, according to
college-going urge of its young citi-
ers approved one bond issue after
Smelser, "that rosy view was just not
zens (and their families) bred alien-
another, local and statewide, for
realistic. The signs of financial
ation and discontent in a significant
stress were already there three or
segment of students,
construction of new college and uni-
versity facilities. UC and the state
four years before Reagan came in."
For some of the brighter high
school graduates it became fashiona-
colleges received most of their oper-
ating budget requests from the state
ble not to go to college, at least not
for a year or two. As draft calls
each year.
Alan Post, the state's respected
dwindled, this trend accelerated.
The emphasis was on quantity-
legislative analyst, agrees.
providing for the seemingly endless
Please Turn to Page 3, Col. 1
"The state was going to have to
stream of California youngsters
pull back," Post said. "The state ex-
seeking higher education-but qual-
panded its services rapidly because
ity was not slighted.
of a surplus of funds in the postwar
Nobel Prize winners dotted the
boom, but by the mid-'60s taxes
University of California faculty-10
were at the limit and the Democrats
at Berkeley. two at UC San Diego,
were employing every trick they
another at UCLA-and UC annually
could think of to balance the budget.
harvested a bumper crop of young
This was not a problem Reagan
scholars from the nation's best grad-
created, it was a situation he inherit-
uate schools.
ed."
Faculty quality was more uneven
in the state college system, but
In the meantime, other events
there, too, the lure of good salaries,
were weakening the strong position
warm climate and a higher-educa-
higher education once held in the
state.
tion boom attracted many able
professors. But all of this was
Student protest. beginning with
drawing to a close in the mid-'60s,
the Free Speech Movement at UC
with or without Ronald Reagan.
Berkeley in 1964 and continuing
California's tax base could not
with powerful demonstrations
support the ever-expanding higher
against the Vietnam war, aroused
education budgets at a time when
hostility among many taxpayers.
welfare and health care costs also
The public was not sure whether
were mounting rapidly.
to blame "a handful of troublemak-
ers" or "spineless administrators" or
"left-wing faculty members," but
they were determined to blame
someone.
The hapless Democrats, who held
the governorship and controlled the
Legislature when the turmoil began,
became convenient targets.
Universities Under Reagan---an Era of
Continued from First Page
The job market tightened. Even
teaching jobs became scarce. Why
go to college, some young people
asked, if you could not get a job
Change
when you graduated?
Why pay for a college education,
their parents asked, when the unem-
Reagan has been stingy with state
ployment rate for college graduates
funds for organized university re-
had risen to 8% while it remained at
search.
5% or 6% for those who did not at-
He seems to have a much greater
tend college?
appreciation for four-year undergra-
Other strange, silent changes were
duate colleges than for complex uni-
taking place. California's birth rate
versities which specialize in re-
was declining and immigration to
search and graduate training.
the Golden State, a statistic which
A high state official recalls that at
had streaked upward on the demo-
a meeting to discuss new facilities
graphic charts for years, was slow-
for a UC campus held early in the
first Reagan Administration the
ing to a crawl.
It is clear now that the mid-'60s
governor said:
"My idea. of higher education is
enrollment projections for the Uni-
four years on a campus with red
versity of California and the Califor-
brick walls and you leave with a
nia state colleges were too high. and
tear in your eye."
the growth plans based on these
projections were unrealistic.
Huge and Complicated
Even Clark Kerr, architect of the
This does not describe the Univer-
university's growth plans as its
sity of California, a huge, complicat-
president from 1958 to 1966, agrees
Clark Kerr
ed, expensive, sometimes cold and
photo
the plans were too ambitious.
impersonal institution which has as
"Had I stayed as president I would
Long-Range Impact
its main goal high-quality research
have had to trim back." said Kerr,
Few of the university's leaders
and the training of the very best
who is now chairman of the Carne-
will say SO publicly, for fear of budg-
graduate students-not the second-
gie Commission on Higher Educa-
etary reprisals, but most of them be-
best or the 10th-best but the very
tion.
lieve the long-range psychological
best.
"The demographic changes must
impact of Reagan's actions and
Reagan attended a "tear in your
have been among the biggest in the
statements will prove to be more da-
eye" school himself--Eureka Col-
history of the world. The recession
maging to the university than his
lege, a small liberal arts institution
played a part too."
fiscal policies.
150 miles southwest of Chicago. And
Serious Money Problems
They believe that the academic
the Eureka College model seems to
environment has deteriorated due to
have stayed with him for 40 years.
Even Ronald Reagan's severest
This attitude accounts for much of
the politization of the university
critics agree that the new governor
and of higher education in general.
inherited serious financial problems
the governor's hostility toward the
Many faculty members have lost
and a changing higher education
University of California, in the opin-
pride in their work and faith in
ion of Richard Peairs, West Coast di-
picture when he took office in Jan-
themselves. They are no longer
rector of the American Assn. of Uni-
uary, 1967.
thought to be distinguished men and
versity Professors.
Some even concede that Reagan's
women who constitute a valuable as-
"I believe the man is honestly mo-
tight budgets have forced adminis-
set to the state but instead are de-
tivated but his experience in higher
trators in both the university and
nounced as tax eaters who do not
education is very much conditioned
the state colleges to become better
produce enough.
by his own undergraduate career at
managers and more realistic plan-
a time and in a place that had very
ners.
To some extent the professors
little to do with the modern higher-
But few forgive Reagan the harsh
have themselves to blame. During
education community," said Peairs.
political rhetoric with which he has
the lush '60s too many, especially in
"Not only is the University of Cali-
attacked the higher education com-
the sciences and engineering,
fornia not Eureka College-even
munity, especially the University of
shirked their teaching responsibili-
Eureka College isn't Eureka College
California. These attacks have da-
ties to pursue research activities.
anymore."
maged morale in the colleges and
Research and advanced graduate
Reagan has dealt somewhat more
universities, especially among the
training. which are the unique re-
sympathetically with the state col-
faculty, and they have persuaded a
sponsibility of the university and its
leges than with U.C.
part of the public that tax dollars
most important function. became for
When he took office, he said in a
spent on higher education are a
some faculty members the only con-
recent interview. the state colleges
waste.
cern. The fewer students they could
were "poor relations" of the univer-
In recent Interviews one UC ad-
teach the better, at whatever level.
sity. "They had been far below in ev-
ministrator spoke of Reagan's
It was much more exciting and
ery instance
We did set out to
"strident and rhetorical statements"
glamorous to be hopping jets to
try and bring the state college SVS-
about the university. and another
Washington twice a month than to
tem to what we felt was a more fair
talked about his "punitive style."
be doing a solid job of teaching and
level."
They have in mind his 1966 cam-
research on one's own campus.
A Change of Name
paign against the "mess at Berke-
ley," the dismissal of President
A Seller's Market
The governor supported legisla-
Kerr, the 1970 threat to deal with
It was a seller's market for acade-
tion to change the system's name to
mic talent and for some professors,
California State University and Col-
Isla Vista rioting through a "blood-
bath," the many statements and sug-
loyalty to a particular campus wilt-
leges, in the face of fierce opposition
ed in the face of tempting offers
from UC.
gestions that UC professors do not
spend enough time in the classroom
from other aspiring institutions.
He has reduced slightly the faculty
salary gap between the two systems.
and live too high on the hog.
But the failings of the university
His dealings with Chancellor Glenn
"Some of these things (budget cuts)
professors have been exaggerated
S. Dumke and the Board of Trustees
would have happened, whoever the
by Gov. Reagan, who not only has
are far more cordial than his spiky
governor was, but perhaps they
claimed they do not teach enough
relations with President Charles J.
wouldn't have been done in such a
but that much of what they do teach
Hitch and the Board of Regents.
hostile way," Prof. Smelser said.
is left-wing propaganda.
The governor's men have kind
"You can cut the budget without
The governor claims to have great
words for Dumke.
suggesting that the faculty is made
respect for the University of Califor-
"You've got to respect him." said
up of loafers and subversives."
iia's research accomplishments but
Finance Director Verne Orr. "He
there is little evidence of this,
wants money as much as the unver-
He is proud enough of the labora-
sity but he's willing to admit it
tories UC operates for the Atomic
when his figures are off.
Energy Commission and of such ac-
tivities as the submarine warfare
and moon rock research under way
at UC San Diego, but all of this is fi-
nanced 100% by the federal govern-
ment,
"11's a different kind of contronta-
meetings
tion on every issue. One (the State
"In that situation Reagan was able
cause the people elected
University and Colleges) is coopera-
to paint a picture of a university
him to do so, but his pre-
tive. When they're asked to take an-
that most of us didn't recognize but
sence frequently turns the
other look at their enrollments or
apparently was believed by many
meetings into confronta-
consider some commendations in an
people."
tions which damage the
audit report, they do it.
Whatever the reasons for the hos-
university's position as a
"The other (UC) appears to us to
tility toward the university and its
nonpolitical institution.
he constantly inflating their figures
faculty, it has taken a psychological
Reagan also contends
and when they're wrong they won't
toll which cannot be measured for
that he has insulated UC
admit it."
many years
and the state colleges from
But when all the words of praise
The attacks have been accompa-
the political fires by ap-
have been spoken and the hard
nied by the increased politicization.
pointing regents and trus-
hudget negotiating has begun, the
The governor says it is not his
tees "who have too much
State University and Colleges do not
fault.
character to inject polities
fare much better than the Universi-
"I've leaned over backwards to
or to take orders from
ty of California.
take any politics out of the adminis-
someone in the governor's
Student-faculty ratios in the state
tration of the university." he said,
office. I never told any of
college system have risen steadily.
"and I think in all fairness it has to
them what to do or how to
In the last three years expenditures
be admitted that this was not true of
vote or anything of the
per student have dorpped about 5%
my predecessors."
kind. I just appointed
while the faculty teaching load has
But the facts indicate otherwise.
what I think are some
increased by 12%.
First, Reagan made higher educa-
pretty distinguished and
Faculty Leaves Curtailed
tion-the "mess at Berkeley" ma-
solid citizens."
A reduced teaching schedule for
jor issue in the '66 campaign.
The Good Ones
Next Kerr, the former UC pres-
professors who handle mostly grad-
There have been some
ident and a prominent liberal, was
uate students (the colleges offer
fired at the first regents meeting
good appointments - re-
master's degrees but no Ph.D.s) has
Reagan attended after his election.
gents William French
been eliminated and there is only
Smith, Robert 0. Reynolds
enough money to finance about 8%
Please Turn to Page 22, Col. 1
and H. R. Haldeman, who
or 9% of the sabbatical leaves
served a short term before
professors have earned.
22 Sec. A-Sun., Jan. 7, 1973
Yes Ingeles Times
becoming President Nix-
"Reagan is our best organizer,"
on's chief of staff: trustees
said Bud Hutchinson, executive sec-
Karl L. Wente, Dr. Wil-
retary of the United Professors of
California, which has about 3,200
Reagan Era Marked
liam McColl (who resigned
to run for Congress) and
members among the 15,000 profes-
W. 0. Weissich; and
sors in the college system and is
Lorenzo N. Hoopes and
pressing for collective bargaining.
by College Changes
Patterson N. Hyndman,
Reagan's policies also have been
members of the Coordinat-
helpful to the state's private colleges
ing Council for Higher
and universities.
Continued from Third Page
Education.
He has increased funding for state
While the governor did
But the governor also
scholarships from $6 million to $40
not initiate this action, it
has named several zealous
million in six years, a boon because
was triggered by his elec-
conservatives who have
about half of the state scholarship
tion,
attempted to use the
winners elect to attend private in-
Reagan has consistently
governing boards as grind-
stitutions,
used the Board of Regents
stones for their ideological
Reagan also has supported grad-
as a forum for personal
axes.
uate fellowships and opportunity
publicity.
Little has been done to
grants for low-income and minority
The governor of Califor-
extend membership to
students, program: S which feed
nia also is the ex officio
minority races or to wom-
about $2 million a year into the pri-
president of the Board of
en.
vate sector.
Regents, but past gover-
Political appointments
A new program this year provides
have been made. Gov. Rea-
about $600.000 to the Stanford, USC
nors rarely attended board
and Loma Linda medical schools to
meetings.
gan did not begin the prac-
train additional doctors. Next year
Realizing that a conflict
tice - several of Pat
of interest existed be-
Brown's political ap-
funding for this program will be
tween the governor, re-
pointees were disastrous
doubled and there is talk of state
sponsible for all of the
mistakes --- but he did not
support for private institutions in
state's expenditures, and
TROUBLE SPOT -
end it, either.
other specialized fields.
president of the Board of
Charles J. Hitch suc-
Taken as a whole, the
Indirectly Reagan has aided pri-
Regents, pressing the uni-
ceeded Clark Kerr as
governor's higher educa-
vate higher education by imposing
versity's annual budget re-
the president of UC.
tion appointments have
tuition at UC and by cutting back on
quest, past governors
(P) photo
been disappointing.
construction on both UC and state
avoided most of the meet-
The governor, holding
university campuses, giving private
ings.
press conferences before
The appointees' impact
institutions a better chance to com-
But Reagan seldom
and after a meeting. usual-
on the institutions they
pete for prospective students.
misses a regents meeting,
ly manages to dominate
govern cannot be judged
and when he is there the
TV coverage of the event.
Some believe Reagan is hostile to
for years. just as it will be
the University of California because
business of education fre-
Charles Hitch. the quiet-
a long time before the true
some of his strongest political back-
quently gives way to the
ly competent but colorless
effects of the politicization
ers in Southern California are USC
politics of confrontation.
economist who replaced
of California higher educa-
The governor's op-
Kerr as UC president, is
men who believe UC offers unfair
tion become clear, but it is
pouents on the board at-
no match for the governor
competition for private schools,
a simpler matter to mea-
tempt to score debating
on the television screen.
sure the results of some of
Others think the Eureka College
points. Once Democrat
Reagan's constant atten-
background is responsible for these
Gov. Reagan's other high-
Fred Dutton, a Brown ap-
dance at regents meetings
er-education policies.
views, while still others believe the
governor drew an early bead on the
pointee, goaded Reagan
has helped him win the
budget and tuition battles
90% of Requests
university because he was con-
into calling him a "lying
son of a bitch."
(after turning down the
Generally speaking
vinced Clark Kerr worked covertly
to defeat him in 1966, (Kerr denies
Reagan's allies and an-
governor's request for tui-
Reagan has been granting
tion in his first year, the
UC and the State Univer-
Unis.)
pointees among the re-
gents rally to the gover-
regents capitulated and
sity and Colleges about
Some see the governor's actions as
nor's defense. even when
voted in a $800 "education
90% of their operating
an inevitable part of recent history.
they privately disagree
fee" for all students a year
budget requests, con-
The Vietnam war radicalized R
with his positions.
later, but in the process
pared to the 95% or more
generation of kids and at the same
the board has been turned
they received from former
time it conservatized a whole gener-
Extensive Coverage
into a political arena.
Gov. Brown.
ation of older people who saw what
A Reagan appearance is
Former UC San Diego
This seems a slight dif-
was going on-the protests, the long
covered by swarms of tele-
Chancellor William J. Me-
ference but it means lar-
hair, the 'counterculture' - and
didn't like it," said Roy G. D'An-
vision reporters who ordi-
Gill described R $
ger classes, higher stu-
narily ignore the Board of
meetings as "theatrical en-
dent-faculty ratios, fewer
drade, gist. a UC San Diego anthropolo-
Regents.
terprises" in a parting shot
dollars spent per student,
before be left the state to
heavier teaching loads,
become president of Co-
crowded libraries, duty
lumbia University.
buildings and few, if any,
new programs.
Hitch
called
the
hudgets
of
the
hearted affairs
Continued from 2nd Page
University of New 1
irnished
our
past
Cal Poly as a peaceful, rur-
campuses-have not 1
compromised
doing much hiring.
al campus populated by
When such an ins
ident-faculty ratio
contented students.
tion does tempt a.
general
UC
Legislative analyst Post
professor, "the unive
(excluding the
said, "I think the state uni-
is still able to come
rancisco
Medical
versity has reached a
with an offer that
has increased
meet the individ
16
to
1
six
point where any increase
needs." according to ]
to
about
18.5 to 1
in class size or faculty
Neil Smelser.
the
state
colleges
teaching load would mean
$11,200 to $27,800
in
those
same
a real deterioration."
been
from
16.3
Both Yale and the
Many in the system be-
to
1.
versity of Chicago are
increase
has
been
lieve the process of deteri-
trying to lure one pi
damaging to
oration already has begun.
inent sociologist a
UC campuses.
Nothing is more impor-
from Berkeley, and
Classes
tant to a university than
vard and Princeton ar
its library. And the Uni-
ter another. But
UC Irvine opened
versity of California li-
chances are they'll
he
student-faculty
braries are in real trouble.
stay," Smelser said, in
a
low
10
to
1
and
planners thought
Fewer books are being
because UC has sweet
about 15 years in
purchased, those which
the pot for both.
reach
the
univer-
are purchased remain un-
Even though Califo
average
of
17
cataloged for months or
faculty members
or
years, library hours have
without any salary
has
been
hir-
been curtailed because of
crease from 1970 to
20
to
30
new
a shortage of personnel.
(once the governor's
each year, in-
theft and vandalism have
the other time the Leg
the planned 70 or
increased sharply.
ture's) salaries have
the result that the
4.1 Million Volumes
HAULED AWAY-Campus police of UC Berkeley
fallen too far behind
faculty
ratio
al-
"The library is an abso-
remove demonstrators during sit-in in Student Union.
competition.
shot
to
20
to
1,
photo
lute disaster," said Charles
(UC professors earn {
in the UC system.
Muscatine, a UC Berkeley
$11,200 to $27,800;
are
crowded
and
expert in medieval French
on the Berkeley faculty,
men at the UC San Diego
range in the Califo
udents cannot get
and English literature.
said the library already is
Medical School have ac-
State University and
they need to
"New books, cataloging,
shared by 80 many people
cepted jobs at Harvard be-
leges is from $10,53
especially in the
maintenance, security -
that "you never expect to
cause the money is not
$20,664.)
even
though
lab
you name it, it's a sham-
find a book on the shelf
available to complete the
A raise averaging 9
are
offered
day
bles."
and there is heavy loss
research programs they
the current year he
seven days a
Muscatine is not talking
due to theft. damage and
came to San Diego to do.
as did the fact t
about the corner branch of
vandalism. The library is
A prominent member of
some professors rece
university's res-
the public library but
very, very bad in terms of
the Berkeley English de-
merit increases and
college exper-
about a 4.1 million-volume
everyday use."
partment has resigned to
motion raises even in
UC Santa Cruz is
by a shortage
library, the second largest
A few hundred feet from
become a lecturer at Ox-
years when there wer
Construction
university library in the
the Berkeley library
ford University, at a sub-
across-the-board incre
of
country and one of the
stands additional evidence
stantial cut in pay.
seventh
and
Another explanation
great cultural assets of the
of Reagan budget cutting
There has been a trickle
colleges has been
the absence of facult
-vacant laboratories in
the addition of fu-
state and the nation.
of first-rate people away
signations came from
the Life Sciences Build-
is in doubt
A year ago Department
from the university. but
unexpected source-(
of Finance auditors sug-
ing, shut down because
basically the governor is
Kerr.
supply of new
the ventilation was inade-
members has
gested that UC sell its rare
correct.
quate and there was no
Negative Noises
size as high as
book collections to pro-
Resignations of tenured
duce revenue for the hard-
money for repairs.
The Berkeley campus
UC faculty members
"Reagan has been a
is exactly the
mass educational
pressed state treasury, a
reached 3% in 1965 and
restrained with the £
UC
Santa
Cruz
proposal SO ludicrous to
has been given $150,000 to
1966, in the wake of the
ty on the political si
many that it damaged the
$300,000 a year for main-
to prevent.
tenance when it should be
free speech protests at
said Kerr.
credibility of other, more
Berkeley, but they have
"He wasn't restra
Isn't
There'
sensible recommendations
spending 10 times that
dropped steadily since
with the students-u
rowded
classes
are
the auditors made after a
amount. As a result, build-
then and now amount to
in
lengthy inspection of uni-
ings and grounds are
gas in Berkeley and
problem
the
less than 1% per year.
that-but he was with
niversity and Col-
versity operations.
going to seed.
These figures do not
faculty. A couple of
However, the Reagan
Rebuttal Provided
take into account the num-
rious academic free
top
official,
"We
Administration is deter-
"We're kind of sliding
ber of sought-after scho-
cases could have b
considerably
re-
mined to make further
downhill slowly," said a
our large institu-
lars or promising young
the place apart."
cuts in library spending.
Berkeley official. "It hap-
ability to offer to
people who decided not to
There have been
Reagan View
pens on all public campus-
the opportu-
come to the University of
close calls. Reagan apr
es, but it's a shame to see it
close work with
Once all eight UC gener-
California because of what
tees on the Board of
here. This was such a pret-
ructor."
al campuses planned to
they judged to be an unfa-
gents once blocked roi
ty place and so well kept
Board of Trustees
have extensive research II-
vorable political climate.
promotions for a Berl
up."
two years ago braries. When John S. Gal-
UC Berkeley economist
history professor who
If class size is increasing,
student body braith was chancellor at
Roy Radner said four se-
been close to campus
teaching loads are heavier,
at Cal Poly San UC San Diego he made
nior persons have turned
cals and a UCLA phi
the libraries are a mess
complained such an issue of the need
down his department's of-
and the buildings are fall-
phy professor who
had little opportu- for a great research libra-
fer since 1969, "giving as
ing apart, then surely
ported Angela Davis.
talk to his profes- ry that a bishop prayed for
their reason the political
there were 40 it at Galbraith's inaugura-
professors must be leaving
they withdrew their o
and financial situation the
the state in droves.
tions the next month.
tudents in all his tion.
university is in."
They are not, providing
There were nega
Galbraith is gone now
Gov. Reagan with a strong
But the fact remains
noises from the gover
it
to
do
all
over,
and SO is the notion of
rebuttal to criticism of his
that the flight of prom-
office when Rich
if I would go to eight great research libra-
budget trimming.
inent faculty, SO widely
Flacks, a founder of
Banke said. "It ries.
"I think we've done a
predicted when Reagan
dents for a Democratic
it-the quality
The Reagan Adminis-
good job with the univer-
took office, has not oc-
ciety, was appointed
tration believes that only
sity," he said. "In spite of
curred. Why not?
ciology professor at
stunned
the
trus-
Berkeley a nd UCLA
think
the annual crying that
For one thing, the
Santa Barbara, but n
like
to
of
should maintain large re-
takes place, we find that
academic job market has
tion was taken.
Turn
to
Pg.
23,
Col.
1
search libraries and that
few of the professors
tightened everywhere.
Another potentially
their collections should be
leave, fewer than were
The kinds of places that
rious fight was heade
shared not only by other
leaving before we got
might be attractive to the
when Michael Tiga
UC campuses but by the
here."
best members of the UC
leader of the student
10 state colleges.
There are some impor-
faculty-the Ivy League
during his undergrad
Henry Nash Smith, a re-
tant exceptions.
universities, a few Big 10
days at Berkeley at
nowned English scholar
Two department chair-
schools, two or three State
lawyer for the Chica
or Minnesota or a number
we're no longer threaten-
2* Los Angeles Times 23
of other places that are
ing to our neighbors."
Sun., Jan. 7, 1973-Sec. A
good but not extraordina-
Most people in the unl-
ry."
versity agree that Gov.
strike a balance between
This is where the story
Reagan should be con-
of the Reagan years ends,
cerned about expenditures
making sure public funds
are being spent wisely and
with the sense-intangi-
for public higher educa-
ble, hard to prove but un-
tion, but they think he has
destroying t h e delicate
academic environment a
yielding-that a great uni-
approached the problem
clumsily, to say the least.
great university or college
versity, the greatest this
should have."
country has put together
There is general agree-
with public funds, is slip-
ment with this statement
It is a trick Gov. Reagan
has not mastered.
ping down to the level of
by Alan Post:
mere adequacy.
"T h e governor must
The end result of the
know enough about high-
tight budgets, the denigra-
er education budgets to
tion of professors, the sus-
make intelligent policy de-
picion of motive and pur-
cisions. So must the Legis-
pose is a university which
lature.
is less than it was and
ESTEEM - Chancellor
"It is a difficult trick to
much. less than it might
Glenn S. Dumke is re-
have been.
spected by members of
Dean E. McHenry, a
Reagan Administration.
Times photo
University of California
teacher and administrator
resigned from the UCLA
for more than 30 years and
now chancellor at UC San-
law faculty shortly before
he was to be considered
ta Cruz, put it this way:
for a tenure appointment.
"We have been a kind of
Angela Davis' dismissal
British Empire but we've
had our day. Now we're
from the UCLA philoso-
more like the British Com-
phy department, a regents
monwealth. We're pretty
action which had Reagan's
much on the ball, we still
enthusiastic support, al-
do some things well, but
most provoked a major
rhubarb, but faculty sup-
port for Miss Davis disin-
tegrated after she was ar-
rested for alleged involve-
ment in a Marin County
courthouse shootout
which cost the life of a
judge. She was later ac-
quitted of the charge.
In the State University
and Colleges, Chancellor
Dumke, with the blessing
of the governor and the
Board of Trustees, has
fired several professors
with radical associations.
But some have won their
jobs back in court and
none of the others has be-
come a major rallying
point for protest.
There also is the plain
fact that professors, like
many other people. like to
live and work in California
and will remain until the
situation becomes intoler-
able.
Ship Analogy
"It's like getting the
Queen Mary into dock,"
said Prof. Henry Nash
Smith. -It took about a
dozen tugs several hours
to get that thing to move
at all, but once it started
the momentum was hard
to stop.
"Berkeley is something
like that. You have stimu-
lating and congenial col-
leagues and good graduate
students. These factors do
not alter as rapidly as does
the political climate or
even the salary scales.
They last for years. The
real damage done by Rea-
gan won't be seen for 15
years."
And Smith believes the
damage has been serious.
"We're not getting the
best young people any-
more,' he said. "I don't
think anything can change
that now. This university
is going to be like Illinois
SPENDING FOR UC
Student Must Come
First, Reagan Says
"It's a matter of degree. I just
think the university, and not on all
campuses, went a degree too far in
the emphasis on research. In other
words, for a university to continue
BY WILLIAM TROMBLEY
to claim the greatness the Universi-
Times Education Writer
ty of California claims, and I am pre-
In a recent interview with The
pared to say it's entitled to, it should
Times Gov. Regan talked about his
not claim it alone on the miracles of
six-year confrontation with the Uni-
research that result in some im-
versity of California:
provement for mankind but also
"When I came in, of course, it was
that greatness should be judged by
a most unusual situation
They
the output of educated students and
were well into the history of vi-
the quality of those students
olence and disruption on the cam-
Focus Is on the Student
puses, even to the point of a few
"I think the student is kind of like
murders and burning of buildings.
the infantryman. When I was a re-
"I had the terrible feeling that
serve officer in the cavalry I learned
somebody else was tearing down the
that the infantry is known as the
university and it was time for all of
'queen of battle' Every other
us to rally around and see what
branch, Air Force, Navy, cavalry ar-
could be done to preserve it.
tillery-everything is only there as
"I don't know how much an ad-
an auxiliary to enable the infantry-
ministration has to do with the
man, with a rifle in his hand, to OC-
change on this-whether what we are
cupy the enemy territory, to take it
seeing now is just a natural change
and occupy it. And sometimes I
and it (violence) had run its course.
think, isn't this in a sense true of the
I know that I was at odds at times
prestige of a university? The univer-
with the philosophy on the part of
sity is only prestigious SO you can
the university administration that
send your top students there
seemed to follow what I thought was
an appeasement pattern. I stre-
"I think it's a great university. I
nuously objected to this-it never
Gov. Reagon
think the very fact that prestigious
has won peace for anyone, whether
photo
faculty still want to come here and
a nation or a schoolroom."
that they're not running away in
The governor was asked why he
Blue-Pencils Restorations
droves indicates it. (But) I would
made the "mess at Berkeley' an
The Democratic Legislature re-
like from the university more of an
issue in his successful 1966 cam-
stored much of the governor's budg-
effort to see if we can't get more for
paign.
et cut, but Reagan blue-penciled the
the dollar than they've been inclined
restorations from the final budget.
to do. They're the ones with the
Birth of a Campaign Issue
Substantially the same pattern has
chip-on-the-shoulder attitude about
"I never brought up the universi-
been followed in subsequent years.
SO many things.
ty, but after several weeks of the
Reagan has trimmed the regents'
"At governors' conferences I hear
campaign I had to come back and
budget request and then has held
things that curdle my blood. I hear
say, 'Look, I don't care if I'm in the
firm in the face of legislative efforts
governors in some other states talk-
mountains, the desert, the biggest
to restore some of the cuts.
ing about hiring a president of a uni-
cities of this state, the first question
As far as the University of Califor-
versity, or a chancellor. And I mean
(is): What are you going to do about
nia is concerned the fiscal crisis has
they, individually, say this is who
Berkeley? And each time the ques-
lasted not one year but six.
it's going to be.
tion itself would get applause, so
Now a new debate has begun over
"Well, whether they believe it or
this was how the university got into
the 1973-74 budget. The regents are
not over there (at UC statewide
the campaign
asking for $438 million. a $53 million
headquarters in Berkeley), way
"Now the economics of the univer-
increase over the current school
down deep inside my greatest fear
sity came about after we got in here
year. Although the state treasury
has always been of government. I'm
and discovered what we were up
apparently will have a substantial
still afraid of it even though I'm a
against financially. In the period be-
surplus this year the Reagan Ad-
part of it. And I don't want that kind
tween the election and the inaugur-
ministration shows no signs of giv-
of thing done."
al, during which I think an incoming
ing much of it to the university.
administration expects to have some
The governor and his finance di-
briefing and all, our briefing was
rather incomplete. The outgoing fi-
rector, Verne Orr, have been ar-
nance director (Hale Champion) just
guing that the additional money
stood up and told US, "The state is
would not be needed if UC would
spending $1 million a day more than
stop padding its enrollment figures
it is taking in. Goodby, gentlemen.'
and would force its professors to do
Every day seemed to bring new
more teaching and less research.
problems
Said Reagan:
"I sent him (Finance Director
"I'm not attempting to set stan-
Gordon Paul Smith) over to the re-
gents to ask if they would help the
dards except based on the idea that
state in those dark days by making a
the customer is the young person
certain amount of the regents'
going to the university and we
funds, the endowment, available as
should constantly review to see if
a substitute for the general fund up
that customer is getting what he
went for or is
a
sort
of
sideline
here. And I promised that would
activity in the intellectual commu-
only be done on a one-year basis."
nity.
In February, 1967, the UC Board of
Regents agreed to reduce its operat-
ing budget request for the following
year by $13 million and also to turn
over almost $21 million in special
funds paid to UC by the federal
government for administering fed-
eral research contracts and grants.
"A LOT OF
'BEAUTIFUL PEOPLE'
NO ONE LEFT
TO DO THE CHORES"
Why are so many middle-class youths opting out of what they call "the rat race"?
What impels them to choose nonprofessional careers-often after expensive college
training? Is present-day higher education part of the answer? Trends that baffle many
parents are discussed by a prominent educator in a recent talk to college officials.
Excerpts from the text of a speech by Dr. Peter L. Berger,
really drop out to become sandal makers and the like, and
professor of sociology at Rutgers University, before the
the "halfway greeners," who go into such things as creative
American Association of State Colleges and Universities, at
advertising, social work or, alas, academic sociology-essential
Washington, D. C., on Nov. 13, 1972:
jobs will remain unfilled. This means new opportunities of
upward mobility for the children of the lower-middle and
I have been asked to deliver this address on the basis of an
blue-collar classes. Hence the formula: The more "greening"
article called "The Blueing of America" which I wrote to-
in the upper-middle class, the more "blueing" of the society
gether with Brigitte Berger and which was published in "The
as a whole
New Republic" in April, 1971.
It is important, I think, to differentiate between the
We wrote the article out of annoyance with the atrocious
"greening" effects in higher education and the political mood
nonsense that was being spouted at the time in connection
with which it was linked in the late 1960s-and, to a lessen-
with Charles Reich's "The Greening of America." We are
ing degree, is still linked. There is no intrinsic or necessary
somewhat surprised by the very strong interest-most of it
relationship between being on the left politically and feeling
favorable-which the article generated. Actually, we had
an affinity with the cultural style of "greening." At least in
thought that we were saying the obvious. Apparently what
this country, there are some good grounds for thinking that
was obvious to us was not so to a lot of other people. As
what looked like a radical political tide is ebbing.
sociologists, I suppose, we should have known this before.
By contrast, I believe, the "greening" syndrome in youth
The major thesis of our article was very simple: At the
culture and counterculture has much deeper roots and is
heart of the "greening" impulse is a re-
likely to be much more durable. Thus it
jection of the so-called Protestant ethic.
would be misleading to think that the
This ethic, however, in one form or an-
recent political calm on American cam-
other, is crucial to the continued exist-
puses indicates that the "greening" im-
ence of a technologically complex so-
pulse has had its day. Quite on the con-
ciety. If everybody in the society
trary: While the political radicalism of
"greened," one would have to have
the late 1960s may have had its day,
serious worries about the future viability
the "greening" phenomenon in American
of the society. There would then be a
academia is well on the way to being
lot of "beautiful people" doing what at
firmly institutionalized. To put it in a
least they themselves would consider
slightly oversimplified way: The "kids"
beautiful things, and there would be no
may have lowered their voices, but they
one left to do the chores necessary to
haven't cut their hair.
keep the society going.
The most visible signs of this institu-
Whatever data we have, however, in-
tionalization process are such things as
dicate that the "greening" phenomenon
student participation in academic deci-
is not evenly distributed throughout the
sion-making bodies and the abandon-
society; rather, it is strongly class-specific.
ment, in numerous areas, of the concept
The "greeners"-for reasons that I cannot
that colleges act in loco parentis [in
go into here, but which are not at all
place of a parent].
mysterious-are mainly the children of
The real effects of these changes have
the upper-middle class.
probably been exaggerated. The major
To the extent that "greening" means
result of student participation in aca-
a turning away from careers in the major
demic governance has been a prolifera-
economic, technological and bureau-
tion of committees which nobody but a
cratic occupations-we made a distinc-
-Larson Photo
skilled bureaucrat can understand and
tion between the full "greeners," who
Dr. Berger
which, therefore, have strengthened the
56
U.S. NEWS & WORLD REPORT, Dec. 4, 1972
afford a good many people engaged in nothing but such ac-
tivity. It still requires what John Kenneth Galbraith has called
the "technostructure"-tha is, a body of institutions and of
On many college campus-
personnel to run them-for the essential tasks of production
es today, Dr. Berger notes,
and administration. The personnel for the technostructure
"students sit under the
must be trained. If some of the schools that used to undertake
trees with their shoes off
this training become "greenhouses," other schools will have to
and engage in the not-so-
perform this function
arduous task of finding
I think that there will be institutions, or differentiated seg-
out who they really are."
ments of institutions, that will become "greenhouses" pure
and simple. I don't have to mention names to indicate that
But at other colleges
some such places exist already.
there remains "respect for
In these places, for four years or less, students sit under
hard intellectual labor."
the trees with their shoes off and engage in the not-so-arduous
task of finding out who they really are. Professors play a role
best described as "honorary youths." Administrators are kept
hand of administrators against both students and faculty.
busy convincing the available funding agencies that such an
As to the loco parentis business, I wonder if it means much
enterprise merits continuing subsidization. Instruction in any
more than students doing in the dorm what they used to do
objectively recognizable body of knowledge or skills is mini-
in the parking lot-an improvement in creature comforts, if
mal.
not in morality.
Graduates of these places either go on to some other pro-
The less visible-but much more consequential-change has
gram where they learn something besides their own identity,
been a pervasive softening of academic standards. The aboli-
or they go into jobs where it really doesn't matter that they
tion of required courses, the statistically demonstrable infla-
don't know anything specific. Both these options are quite tol-
tion of "A" and "B" grades, the spreading notion that schol-
erable as long as the number of people involved remains
arly capacity is, at best, one of very many qualities needed
within certain limits. The labor market is such that it may
in a college teacher, the rapid decline in the teaching of
actually be economically useful that a sizable number of
foreign languages-these and similar developments on the
young people simply sit under trees for a while before they
level of curriculum and faculty policy, including personnel
start competing or even training for jobs. And the so-called
policy, are where the long-range effects of "greening" must
tertiary and quaternary sectors of the economy contain a
be sought.
(probably increasing) number of jobs for which no specific
The "greening" impulse in academia is deeply anti-intel-
knowledge is required and where the only required skill is
lectual. Colleges and universities are to become, essentially,
precisely "digging other people as real persons," or at least
places in which certain existential experiences are to be medi-
giving that impression.
ated. Students want to become personally moved, rather than
Thus I would have it very definitely understood that I'm
instructed by course materials; they want to relate to faculty
not in the business of knocking "greenhouses" as long as
on the level of personal encounter; they want the institution
there are not too many of them-and, I should add, as long
to provide whatever services are necessary for personal
as I'm not required to be in one myself.
growth. Conversely, they are opposed to whatever smacks
All this, however, still leaves unfulfilled some crucial re-
of intellectual discipline, objective standards and external
quirements of the technostructure. Some of these require-
regulation. Let me only mention the animus against special-
ments pertain to higher education at its most dizzyingly
ization and the popularity of pass/fail grades in this connec-
"highest." A technological society requires an ongoing re-
tion. If this impulse is traced to its final consequence, it
(continued on next page)
would entail the transformation of, at any rate, undergraduate
schools into what can most aptly be described as vast identity
workshops.
Now, as we all know, this impulse cannot work itself out
to its final consequence everywhere. Thus it runs up against
much stronger restraints in the natural sciences than in the
humanities and the social sciences, and for very good reasons:
The consequences of building, say, a medical curriculum on
student self-evaluation or pass/fail grading are patently more
ominous than doing so in sociology or in English literature.
But more significant for our present considerations is the
previously mentioned class location of the "greening" syn-
drome. The move toward the identity workshop has been
strongest in undergraduate institutions that cater largely to the
upper-middle class. While present there, too, to varying de-
grees, institutions drawing largely from populations of lower-
class levels have been much less ready to convert themselves
into youth-culture preserves, not to say-forgive me, but I
can't resist the temptation-"greenhouses."
I'm concerned with the sociological import of these changes.
Let me put it this way: As they themselves put it, the "green-
ors" are committed to a life style of playfulness. Fine. The
question is: Who will mind the store while they are playing?
If this seems too frivolous a formulation, let me say it in
"Students want to become personally moved, rather than in-
more-respectable social-scientific terms. Our society is affluent
structed; they want to relate to faculty on the level of per-
enough to afford a lot of nonproductive activity, and even to
sonal encounter; they are opposed to intellectual discipline."
U.S. NEWS & WORLD REPORT, Dec. 4, 1972
57
ON THE "BLUEING" OF AMERICA
the institutions represented here today would commonly be
designated as "major league."
[text continued from preceding page]
I further suspect that, to the professors if not the adminis-
trators of many of your institutions, the ivy-laden citadels of
search enterprise of immense scientific sophistication, both in
learning at the pinnacle of the Caplow-McGee hierarchy
pure and in applied research. There must be institutions
loom as objects of both envy and emulation.
that prepare people for this enterprise, especially but by no
To a degree, this is inevitable. In different fields, there
means exclusively in the natural sciences. While such training
will continue to be centers of major intellectual importance,
will probably have to reach into undergraduate curricula, its
in comparison with which other institutions will be, well,
continuing focus will in all likelihood continue to be on the
minor. Nevertheless, it seems to me that some of the basic
graduate level.
presuppositions of this entire status hierarchy must be ques-
Does this mean that the technostructure could afford all of
tioned, and that we're now at a very good time to question
undergraduate education going "green"? I think, quite em-
them.
phatically, that it means no such thing.
Let me put this bluntly, too. Some of the aforementioned
Indeed, one of the weaknesses in Galbraith's original con-
citadels of learning have become "Potemkin villages": Be-
cept of the technostructure was that it only seemed to refer to
hind the still-glittering façades of erstwhile excellence, there
people generally called intellectuals. The people he had in
has taken place a staggering process of intellectual rot.
mind were physicists, research engineers and heart surgeons,
The effects of this can be quite comic. In such places
as well as urban planners and Government experts on Latin-
it is possible to visit, say, the faculty club, and be surround-
American affairs.
ed by people who seem serenely confident that they are den-
Now, there can be no doubt that such occupations and
izens of-if you will excuse the unappetizing image-the in-
others like them are crucial to our kind of society, nor that
tellectual navel of the nation. The visitor is properly awed.
they will be filled with what, at least broadly, may be called
Subsequent research into what is actually going on in the
intellectuals. But for every research engineer who designs a
lecture halls and seminar rooms of the same institution makes
new passenger plane, there must be thousands of highly
the visitor wish for the satiric pen of an H. L. Mencken [late
trained individuals who keep that plane in the air once it's
editor and critic]. What is going on, many times, is literally
off the production line. For every heart surgeon, there must
beyond belief.
be thousands of medical technicians and, very importantly,
Those charged with responsibility for these august institu-
hospital administrators. And for every urban planner, there
tions face formidable problems of self-appraisal and recon-
must be a veritable host-perhaps less than we have now,
struction. Their problems do not concern me at the moment.
but still an awful lot-of dependable civil servants who keep
But for those at other institutions, it seems to me, the time
the vast machinery of municipal government going.
has arrived for healthy skepticism regarding the traditional
All these people must also be trained-and they cannot be
status hierarchy of American academia, and for a much great-
trained in a "greenhouse" atmosphere. If they were trained in
er measure of self-confidence about their own place in the
such an atmosphere, the results would soon be disastrous.
educational system of the society.
To bring this point home, all you have to do is to imagine
More specifically, the "greening" phenomenon, which has
an airline, a hospital or an urban sanitation department run
been primarily located in the "major league" institutions, is
by the values and mores of the youth culture. The vision is
not something to be emulated. I'm not thinking here of such
apocalyptic. But I don't think-pessimist though I am by
questions as whether coeds may entertain male visitors in
temperament and upbringing-that we
their dormitory rooms or whether, some-
need seriously worry. The vision won't
where on campus, there should be an
come to pass; rather, the society will
opportunity for students to go through
maintain or reconstruct the educational
"encounter experiences." I'm reasonably
mechanisms that it requires for its sur-
sure that there will be more of this
vival.
sort of thing in your institutions, as
The class-specific character of the
elsewhere, and I'm quite sanguine
"greening" syndrome will greatly assist
about it.
this process. Even if the whole of
What I have in mind are quite dif-
upper-middle-class youth "greened"-an
ferent things: structured curricula in-
unlikely prospect, incidentally-there
stead of the "cafeteria" style of educa-
would still be an enormous population
tion that is so often confused with in-
reservoir ready and even eager to enter
tellectual freedom; objective standards
these breaches in the occupational sys-
and criteria of evaluation instead of
tem.
the currently fashionable chaos of sub-
Consequently, the institutions of
jectivity; respect for hard intellectual
higher education that mainly cater to
labor instead of the cult of self-expres-
this population take on a strategic im-
sion and "creativity"; an understand-
portance, a public interest in the most
ing of the values of specialization in-
literal and urgent sense of the term-
stead of an orgy of "interdisciplinary"
which brings me directly to the institu-
chitchat.
tions represented by this meeting.
All these, I'm convinced, are badly
Some years ago, Theodore Caplow
in need of resurrection in "major
and Reece McGee, in their book "The
league" institutions-and I'm not at all
Academic Marketplace," described the
sure to what extent they can still be
status hierarchy of American colleges
resurrected in some of these places.
and universities by the terms "major
"For every heart surgeon, there must be
But it seems to me that your institu-
league," "minor league," "bush league"
thousands of technicians," says Dr.
tions are, perhaps paradoxically, in an
and "academic Siberia."
Berger. "If they were trained in a 'green-
excellent position to represent these
I rather question whether many of
house,' results would be disastrous."
educational principles with credibility.
58
U.S. NEWS & WORLD REPORT, Dec. 4, 1972
7/72
EOP
STATE COLLEGES
1970-71
1971-72
1972-73
$3,272,000
$1,654,000
$3,900,000
Funds as budgeted provide an average grant of $440 to 3,500 first
year students thus continuing the existing level, and an average
of $220 to continuing second year students plus tutorial and
administrative costs. This is in accordance with legislative
action. Additional legislative augmentations were not accepted
($1,176,000).
Increasing number of first year students from 3,500 to 4,130 and
extending awards to third and fourth year students.
State funds have never been used for students past the second
year of higher education.
UNIVERSITY
1970-71
1971-72
1972-73
-0-
-0-
-0-
$1,500,000 was eliminated. The State has never provided funds
for University EOP. The Regents have substantial funds for use
at their discretion. Over $20,000,000 is utilized for student
financial aid, which includes $7 million in tuition deferrals and
waivers. There is considerable doubt whether the large class size
and the use of teaching assistants, which is so prevalent in
lower division in the University, is suitable in meeting the
instructional needs of EOP students.
COMMUNITY COLLEGES
1970-71
1971-72
1972-73
$4,350,000
$3,350,000
$4,850,000
Funds as budgeted provide an average grant of $200 to 9,700 first
year and renewal students. Increased funding of $1,500,000 was
authorized even though it has been recognized by all including
the Legislature that it is not possible to determine whether
award levels or support services are effective or adequate. There
has been no justification based on program effectiveness to
justify increased funding. Additional legislative augmentations
were not accepted ($1,750,000).
-2-
The Legislature also added restrictive language to the
appropriation for EOP for Community Colleges. The language would
have the Board of Governors allocate funds to the colleges on a
priority basis and only to programs which demonstrate their
effectiveness and have the most pressing need for student aid.
Although this language places conditions on the allocation of
funds, the Assembly would have included more restrictive language
which would have necessitated full justification for assistance
based on applicants before allocation of funds.
San Rafael, Calif.
Independent Journal
(Cir. D 41,002)
MAR 17 1972
SACRAMENTO SCENE
Board Appointment Counter
To Reagan Philosophy
By RUS WALTON
that Hubbard was a prominent partici-
Governor Reagan has just appointed a
pant and backer of Pasadena "civil
devout liberal to the State Board of
rights" demonstrations as far back as
Education and conservatives are up in
1965.
arms.
One 12-year member of the Pasadena
The liberal is Dr. David Allan Hub-
school board recalled that Dr. Hubbard
bard, 43, president of Fuller Theological
constantly badgered him, accusing him
Seminary in Pasadena.
of racism because of his opposition to
To a man, the Republican legislators
compulsory busing.
representing segments of the Pasadena
area expressed strong opposition to Hub-
IN 1969, as chairman of the Pasadena
bard's appointment. Among those legisla-
Urban Coalition, Dr. Hubbard presided
tors are some of the governor's staunch-
over "Operation Understanding, a work-
est supporters: Assemblyman John L.
shop on race relations. A feature of that
Collier, Frank Lanterman and Carlos J.
workshop, sponsored by the Ford Foun-
Moorhead, and State Sen. H. L. Richard-
dation and a black power group, was a
son.
hectic sensitivity training session for
Assemblyman Robert Burke, R-Hun-
community leaders.
tington Beach, also opposed Hubbard's
Dr. Hubbard chastised the Pasadena
appointment. Burke paid a personal call
Board of City Directors for failing to
on the governor to detail the theologian's
attend the workshop and its sensitivity
left-wing background. To no avail.
training session.
As a key speaker at the workshop,
PRIME MOVERS for Dr. Hubbard's
Hubbard selected Walter Bremond, for-
appointment were Rev. Donn Moomaw,
mer head of the militant Black Congress.
Reagan's personal pastor who recently
Two weeks earlier, Bremond had admit-
resigned from the education board, and
ted to a Los Angeles County Grand Jury
Dr. Alex Sherriffs, Reagan's special as-
that he had given an automobile to Ron
sistant for education.
Karenga, head of the black pressure
Republicans in the Pasadena area, who
group, US. The Bremond auto was used
have followed Dr. Hubbard's activities
as the get-away car for several US
since he joined Fuller seminary, are
members who shot and killed two Black
especially upset. They report that Hub-
Panthers at a UCLA rally.
bard was an early and active promoter of
compulsory crosstown busing to achieve
YEARS AGO the Fuller Theological
integration of the Pasadena school sys-
Seminary was world renowned as a solid,
tem.
fundamental bible school, famous for its
They also document their complaint
"Old Fashioned Revival" hours.
Since Dr. Hubbard's arrival, Fuller has
gone "modern" and left. Most of its old-
line faculty members have departed. The
school now boasts sensitivity sessions,
and group dynamics, for young people.
All of this information, fully document-
ed, was presented to Alex Sheriffs and to
Governor Reagan as soon as word got out
that Dr. Hubbard was being considered
for the State Board of Education.
It obviously had no impact.
WHAT IS INVOLVED here is not Dr.
Hubbard's right to be a liberal. He can
go as far left as he pleases.
The question is: why was he appointed
to such an important post by a govenor
who ran as the conservative alternative
to liberals such as Pat Brown and Jesse
Unruh?
Alex Sheriffs readily admitted his
avowed purpose to "put a liberal Repub-
lican on the board."
BURBANK OFFICE
COMMITTEES
3507 WEST MAGNOLIA BOULEVARD
EDUCATION
BURBANK, CALIFORNIA 91505
ELECTIONS AND
(213) 846-0643
Assembly
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FINANCE AND INSURANCE
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JOINT COMMITTEE ON
California Legislature
EDUCATIONAL GOALS
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AND EVALUATION
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SELECT COMMITTEE ON
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SELECT COMMITTEE ON
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COMMISSION FOR ECONOMIC
NEWTON R. RUSSELL
DEVELOPMENT
ASSEMbLYMAN, SIXTY-SECOND DISTRICT
CHAIRMAN
GOVERNMENT ADMINISTRATION COMMITTEE
To:
ALL LEGISLATORS
From:
Assemblyman Newton R. Russell
Subject: A DEMONSTRATION-PRESENTATION OF PROJECT S.E.E.D.
(Ghetto 5th-6th Graders do high school algebra)
WHERE:
GOVERNOR REAGAN'S COUNCIL ROOM
4202
WHAT YOU WILL SEE: Mr. William Johntz, the founder of Project S.E.E.D,
will teach abstract high school level algebra to a
5-6 grade class from the Camellia School (Sacramento's
second lowest school socio-economically).
The children have been in Project SEED for only two weeks.
Following the demonstration with the children, Mr. Johntz
will discuss the theory, history, and achievements of
Project SEED.
WHY I URGE YOU TO ATTEND: Project SEED is an extremely remarkable national
education program in which ghetto children from
Nome, Alaska to Harlem do advanced mathematics
with great competence and joy. This success
improves their self-concept and consequently
their attitude and performance in non-math areas.
Their teachers are professional mathematicians
from major universities (PRINCETON, YALE, U.C., Etc.)
and research corporations (IBM, BELL TELEPHONE LABS,
PRUDENTIAL LIFE, Etc.)
Project SEED provides the first large scale new
career for unemployed defense and aerospace
engineers.
Though Project SEED is an extremely low-cost
project with excellent evaluation from Cal Tech
(3-year California Study) and the American
Institute of Research (11 city Michigan Study),
I still believe that the best way to understand
and believe this project is to see it.
WHEN: Thursday, April 27, 1972 2:00 to 4:00 p.m. First Demonstration
Thursday, May 4, 1972 - 10:00 to 12 Noon Second Demonstration
PLEASE ATTEND
NRR:ae
A BRIEF DESCRIPTION OF PROJECT SEED
(SPECIAL ELEMENTARY EDUCATION FOR THE DISADVANTAGED)
GENERAL DESCRIPTION: Project SEED is a national program in which professional
mathematicians and scientists from major universities and research corporations
teach abstract, conceptually-oriented mathematics to full-sized classes of
disadvantaged elementary school children on a daily basis. The mathematics is
presented through the use of a Socratic group discovery format. The children
are in no way specially selected for the SEED classes.
Project SEED has more recently involved itself in secondary education
through a peer teaching component in which secondary students teach high school
and college level algebra, not only to their peers but also to university
students. The peer teaching component of Project SEED is presently operating
under a National Science Foundation grant.
HISTORY: Project SEED was started 9 years ago in Berkeley, California by its
present director, William F. Johntz. It has since spread to 15 states, reaching
approximately 6,000 students, most of whom are black children from urban poverty
backgrounds. Also involved are Eskimo, Indian, Mexican-American and Appalachian
white children. Negotiations are presently under way for the establishment of
projects in India, Mexico and various European countries.
MAJOR OBJECTIVE: The long range goal of Project SEED is to raise the achievement
level and consequently the self concept of the disadvantaged child by providing
him with success in a high status, abstract subject unrelated to his culture;
i.e., one not associated with failure by the disadvantaged as language arts and
the more familiar arithmetic tend to be. The simplistic remediation which
characterizes most compensatory education programs usually fails because it tends
to derrogate the disadvantaged child by concentrating on the areas in which he
has already failed. In Project SEED we have had tremendous success by imbedding
remedial arithmetic in the high school and college algebra which is new and fresh
for the child. It has been found, ironically, that the urban ghetto children who
are failing in almost everything else they do in school exhibit enormous competence
and joy in doing high school and college level algebra when it is taught by a
trained SEED specialist who loves and understands mathematics in depth. Mathematics,
as it is normally taught, has an almost 100 percent casualty rate for persons
from all socio-economic backgrounds because the people who teach mathematics at
the elementary level, due to no fault of their own, do not understand the mathe-
matics they are teaching and consequently do not like it themselves. The self-
concept enhancement which SEED students experience as a result of their mastery
of this high status subject improves their whole attitude and performance in
non-mathematical school areas.
JOB AND COLLEGE PREPARATIONS: The success that SEED students experience in mathe-
matics is, of course, the best possible preparation for obtaining jobs and getting
into college. The peer teaching component of SEED can be considered direct voca-
tional preparation for the profession of teaching.
A Brief Description of Project SEED
2
PROJECT SEED AS A NEW CAREER: Many professional scientists and mathematicians,
as well as some Labor Department officials, believe that Project SEED provides
the first serious new career for the tens of thousands of unemployed scientists,
mathematicians and engineers. See article in information packet.
UNIVERSITY INVOLVEMENT: Major universities have responded with unprecedented
enthusiasm and support for Project SEED. A version of Project SEED was incorpo-
rated in the University of California's statewide system (8 universities) as a
part of their Urban Crisis Program. Several universities, including Yale,
have provided released time to their mathematics faculty to teach in Project
SEED. University mathematicians from Asia, Europe and South America have
demonstrated the same kind of interest.
INDUSTRY INVOLVEMENT: Mathematicians, scientists, engineers and actuaries from
major industries such as IBM, Bell Laboratories, Prudential and New York Life
Insurance Companies are now teaching in Project SEED 4 or 5 days per week.
These corporations feel that Project SEED has profound implications in the areas
of research, management preparation, and relations with poverty communities,
public schools, legislators, etc. See information packet.
PROJECT SEED, FOR THE FIRST TIME IN THE HISTORY OF OUR SOCIETY, IS BRINGING ON
A DAILY BASIS TOP LEVEL PROFESSIONALS FROM MAJOR CORPORATIONS AND UNIVERSITIES
INTO THE PUBLIC SCHOOLS IN A NON-CONSULTIVE, NON-RESEARCH ROLE. THIS HAS THE
MOST PROFOUND IMPLICATIONS FOR AMERICAN EDUCATION AT EVERY LEVEL - K THROUGH PH.D.
POVERTY COMMUNITY: The black and brown poverty community throughout the United
States has been enthusiastically supportive of Project SEED. Parents and
poverty leaders find Project SEED terribly appealing for 2 reasons: (1) The
achievement claims made by SEED for their children are supported by top quality
hard data. (2) Project SEED takes their children seriously in terms of the
highest aspirations of our society - preparation for college and high level
jobs. Jobs and college are the two most relevant considerations in the ghettoes
today.
LEGISLATORS: Project SEED has done demonstration-presentations for legislatures
in California, Michigan and New Jersey. Two statewide bills funding Project
SEED were passed in California and Michigan by legislators from both ends of
the political spectrum. Legislators are fascinated by the fact that Project SEED
brings "ivory tower intellectuals" directly into the "real world" of public schools.
TEACHER TRAINING: The regular classroom teacher is always present in the room
when the SEED mathematician is working with his or her class. Consequently, Project
SEED provides an ideal ongoing, daily inservice training program for teachers in
whose classes we are working. Regular teachers absorb the mathematics, the
methodology and new expectations for disadvantaged children far more readily when
A Brief Description of Project SEED
3
you are working in their own classroom. One day per week is also devoted by
the SEED specialist to working with other teachers in the school. The Cal Tech
study of the California SEED Project in more than 200 classes revealed a very,
very positive attitude toward SEED on the part of the teachers in whose classes we
were working. This is unusual with most specialist programs.
EVALUATION: Statewide evaluations in California and Michigan by the California
Institute of Technology and AIR, respectively, reveal that children in Project
SEED not only are able to perform abstract, conceptually oriented mathematics,
but also that their arithmetic computational skills have improved enormously.
Other evaluations in Berkeley and in Del Paso Heights, California, show signifi-
cant improvement by children in Project SEED classes in I.Q. scores and attitudes
toward self and school.
FUNDING: Funding and the consequent inability to do long range planning are
Project SEED's major problems as it completes its 9th successful year. Sources
of funding are fragmented and therefore inefficient. Financial support
presently comes from Title I and Title III of E.S.E.A., Model Cities, individual
school districts, state legislatures, corporations, and universities. There
needs to be a more inclusive, long range source of funding in order that the
thousands of top level man hours spent in seeking funds could be used to bring
the benefits of SEED to more children, teachers, universities, corporations, etc.
COST: Project SEED Inc., a non-profit corporation, has the extremely low cost
figure of $150 per child per year based on an assumed class size of 30. This is
far, far less than other compensatory education programs that even approach
Project SEED's level of proven success. There are 3 reasons that the SEED price
is so low: (1) Project SEED specialists work with the whole class. Most
successful compensatory education programs involve one adult working with a few
pupils. (2) Project SEED has no materials or gadgets to sell. We sell the
single-most important commodity in all of education - a highly skilled, sensitive
teacher who can reach children from even the most deprived backgrounds. (3) All
of the corporate people who work in SEED are volunteers. This helps to bring down
our national per child per year cost.
Algebra at Age 6?
They Love It.
IBM scientists, teaching
as volunteers in a San Jose elementary school,
report that disadvantaged youngsters are
enthusiastic about learning-amazingly-
abstract mathematics.
"What's another way to get a zero?" asks San Jose Research
Koehler, and Dr. Erich Sawatzky. Help in establishing the
Chemist Dr. William A. Lester, Jr., who teaches algebra
program also came from Dr. James D. Lyons, Dr. Hans
four times a week in San Jose's Olinder Elementary School.
Morawitz, Dr. Will Rudge, and Donald E. Schreiber.
Hands shoot up all over the first-grade classroom. "Plus
The Research Lab scientists started on this voluntary
three and minus three," a six-year-old answers.
project a little over a year ago when they were invited to
Dr. Lester adds the numbers into the "truth set" on the
Olinder School by the San Jose Unified School District,
blackboard and moves a drawing of a little boy, walking
which wanted to test this new system of teaching algebra.
toward a house full of candy and toys, one step closer to
There, they met William F. ("Bill") Johntz, a Berkeley
his goal. The first graders cheer and wait eagerly for the
high school mathematics teacher who travels the country
next problem.
urging school districts to teach algebra in their elementary
Dr. Lester is one of several scientists at the San Jose Re-
schools. He demonstrated his "discovery method" for teach-
search Lab who have left their offices at mid-morning four
ing algebra in elementary school, and the IBMers, along with
days a week during the past school year to drive 10 miles to
a few scientists and engineers from the nearby Lockheed
Olinder School near San Jose's central business district,
Aircraft Company, took on the project of teaching the
in a predominantly Mexican-American area. There they
subject to a few elementary grades at Olinder.
teach a 40-minute class in algebra to children ranging in age
Johntz's system has had amazing success. Called Project
from 6 to about 11-students who would ordinarily begin
SEED (Special Elementary Education for the Disadvan-
studying algebra in high school at the age of 14 or 15.
taged), it is a college preparatory math program now used
The IBM volunteers made up the time by working after
in more than 400 elementary classrooms across the country.
normal hours last year, but during the next school year the
Most of the SEED Project schools are in disadvantaged areas
Research Lab will allow the volunteers to use some IBM
where a high percentage of the students are non-white or
time to teach at Olinder School.
come from families on welfare.
"In view of the success of the program and the com-
"Project SEED is aimed at disadvantaged students for
mitment you've made, the San Jose Research Laboratory
several reasons," says Dr. Lester. "First, the casualty rate in
would now like to match your commitment and support
mathematics is nearly 100 percent for high school students
the program," Dr. Andrew H. Eschenfelder, lab director,
from poverty backgrounds. In a typical ghetto secondary
recently told the group.
school, less than one student in 30 succeeds in a college
"The best years for-learning abstract mathematics are
preparatory math program. This shouldn't be the case, since
SEPTEMBER 70
the early years of a student's education, not the ninth or
math is the most culture free subject; by that I mean, when
tenth grade," says Dr. Douglas McLean, another of the
they start out, poverty students don't have a disadvantage
IBM volunteers. "That idea still has to be proved to a lot of
in relation to students from higher income homes, as they
people, of course. We're trying to help prove it."
often do in English classes, for instance."
Other IBM scientists trying to prove this point include
The regular home room teacher remains in the class-
40
Dr. Paul S. Bagus, Dr. George Castro, Dr. Thomas R.
room to assist the volunteers during their Monday through
in San Jose
ond grade
A.
111111
first grade
teaching
Thursday 40-minute teaching sessions.
The Socratic, or "discovery method" is a general teaching
technique in Project SEED. A child is asked a question that
requires analysis. The reply is accepted without demurring,
and then the teacher asks: "Who disagrees?" If several
pupils disagree, the teacher asks for other possible an-
swers. Gradually, the correct answer emerges without any
of the children being told: "You're wrong!"
"A basic tenet of the discovery method of teaching is
eliminating what Bill Johntz calls failure symbols: text-
books, tests, and so on. This is possible because our algebra
classes are only part of the students' general mathematics
study," says Dr. Tom Koehler.
The SEED teachers have developed a number of devices
to hold the students' attention. Dr. Koehler, for instance,
plays "algebra tic-tac-toe" with his fifth grade class, which
is a combination of two regular fifth grade classes and totals
about 60 children. With one half of the class playing against
the other half, the object for the students is to figure out a
given mathematical equation, and use their understanding of
the equation to place X's and O's in the tic-tac-toe squares.
Teddie J. Thomas, resources teacher at Olinder Elemen-
tary, says it is a gratifying experience to watch these very
young students get excited about the theory of positive and
negative numbers; about filling in the variables in truth sets;
about the area of rectangles and right triangles; about linear
inequalities; and a hundred other complicated principles.
The problem with trying to spread this kind of training
throughout entire cities is the lack of money to hire teach-
ers who have the knowledge of higher mathematics, accord-
ing to Dr. McLean, who says: "How do you get Ph.D.'s to
teach elementary school classes? The money for salaries
isn't there. The answer that I see is professionals in indus-
IBMAGAZINE 41
try contributing their time and talents."
instructor went around the room in ran-
High-status areas, of course, require
The Common Language
dom order, asking probing questions, in-
highly trained teachers. Johntz believes
The instructor wrote a complicated
volving everyone. By the end of the
that, at a minimum, a SEED math teach-
algebraic formula on the blackboard and
hour, the students had talked their way
er should hold a college degree in math.
then turned to his class. "Give me a sen-
through exponentiation, roots and loga-
While a poorly schooled teacher can de-
tence that will check that," he said, as a
rithms-and, with a final exuberant
stroy a child's confidence by calling his
forest of hands shot into the air. One
burst of mental energy, had used logs to
answer wrong, the highly trained mathe-
student carefully presented a description
discover irrational numbers.
matician, through his deep understand-
and development of the equation. The
Ethnic: For the professionalism of its
ing of the structure of the subject, is able
others loudly disagreed, some of them
approach, the class could have been on
to explore the possible value of unex-
waving both hands like semaphores. The
the university level. But in fact the 24
pected responses.
students-most of them black or Mexican-
Cheerios: In the Del Paso Heights Dis-
American-were fifth and sixth graders
trict-the fourth poorest in California-
from the impoverished Del Paso Heights
Johntz's math specialists, several of
Elementary District in Sacramento, Calif.
whom work at IBM, have made their
Their average IQ, by standard testing
subject so popular that the SEED office
methods, was below 100. Yet they were
has become a hangout for students. They
working routinely with advanced mathe-
come in and try to teach math to the sec-
matics, clearly understanding what they
retary and anyone else who will listen.
were doing and loving every minute of it.
And some SEED students even substitute
While most ghetto classrooms around
the country remain tragic exhibits of
American society's failure to teach the
simplest material to the children of its
ethnic underclass, 700 elementary stu-
dents in the Del Paso Heights District
have been racing through advanced math
4,1970
as part of an exciting project called
SEED (for Special Elementary Educa-
tion for the Disadvantaged). SEED is the
brainchild of William Johntz, a lanky,
47-year-old former high-school teacher
who, like many educators concerned
about teaching ghetto kids, long ago con-
cluded that the schools were failing be-
cause they had not yet found a way
around using white middle-class methods
and language with poor, non-white stu-
dents. Johntz, however, took his analysis
a step farther. He reasoned that if lan-
guage skills, with their forbidding over-
tones of white culture, were a stumbling
block, then math, which is culturally
neutral, might be the right place to start.
Seven years ago, he began testing out
his theory by devoting his lunch hour to
teaching algebra to classes of black ele-
mentary-school students.
The experiment worked so well that
Johntz with class: Exuberance
Johntz now devotes all of his time to
selling his unique mixture of Socratic
as math teachers at nearby grade schools
method and serious math to school ad-
and junior highs.
ministrators, legislators and businessmen.
"I like the work," explains 12-year-old
Thanks to the undeniable success of both
Julius Humphrey, 'cause there ain't no
his method and his persistence, a score of
other kind of work like it." Christina Gon-
school districts in California, Alaska and
zales, 11, enjoys teaching too. "It builds
Michigan have publicly funded SEED
up your vocabulary," she told NEWS-
projects, and the program is rapidly
WEEK'S William J. Cook, "because of all
spreading elsewhere.
the words we use" (some of those words
Status: Wherever it is taught, SEED
are student-invented math symbols like
involves the same tough material-ab-
the "cheerio," which is an infinite num-
stract, conceptually oriented high-school
ber equal to all the breakfast-table
and college algebra. Anything simpler
Cheerios in the world).
or more verbally oriented, Johntz be-
But SEED math does not only teach
lieves, would fail for the same reasons
math lingo. Del Paso teachers have no-
other programs of compensatory educa-
ticed that SEED students have lost their
tion frequently strike out; they are so ob-
fear of the parts of speech. The program
viously rudimentary and so culturebound
also means more than just math to the
that they turn off even the lowest
young mathematicians who teach SEED
achievers among poor, non-white stu-
classes. George Drake, a 26-year-old
dents. "No black kid is going to feel bet-
doctoral candidate who helps instruct
ter about himself for winning a watermel-
the black and brown algebraic prodigies,
on-eating contest," Johntz argues. "If
puts it simply. "This is the first time," he
you're going to motivate kids, they've got
says, "that I've been able to apply math
to have success in a high-status area."
to anything socially useful."
de of California
Educ. School Finance
Memorandum
To
: Earl Coke
Ed Gray
Date : April 18, 1972
James Hall
John Kehoe
Ike Livermore
Bill Evans
Frank Walton
Mike Deaver
Verne Orr
Ken Hall
Subject: School Finance
Ed Thomas
Jim Dwight
Court Cases
Jerry Martin
Alex Sherriffs
From : Ed Meese
Attached for your information is a rundown and analysis of the
recent school finance court cases. In addition there is a
discussion of the various State proposals that have been advanced
to resolve the problems presented in the Serrano and similar cases.
This information was provided by the Advisory Commission on
Intergovernmental Relations.
FEDERATION OF TAX ADMINISTRATORS
RM-425
1313 EAST Goth STREET CHICAGO. ILLINOIS 60637
March 15, 1972
SCHOOL FINANCE, THE PROPERTY TAX AND THE COURTS
Recent judgments of both state and federal courts have held that a
state-local system of school finance violates the equal protection clause
of the Fourteenth Amendment to the Constitution of the United States, if
school district property tax capacity is incorporated as a factor in the
system in such a manner as to result in substantial disparities in per
pupil expenditures among the school districts of the state.
This is a brief review of the current status of such litigation,
and also of meast es proposed or under study to revise school finance sys-
tems open to a similar challenge. It might be noted here that contrary to
the impression given by some of the initial comments on these cases, none
of the 1 question the validity of the property tax as an element, or even
as a major source, of revenue for school finance. The constitutional objec-
tion stems rather from the manner in which district property tax capacity is
taken into account in determining the amount available for expenditure per
pupil. Presumably, the same objection would be equally applicable to any
other measure of tax capacity on a district basis.
Background
Serrano et al. V. Priest et al., 5 Cal. 3d 584, 487 P. 2d 1241, de-
cided by the Supreme Court of California on August 30, 1971, was the first
of a series of cases holding that a state's school finance system is invalid
because it classifies eo cational opportunity in the public schools on the
basis of wealth. In California, the foundation program combines a qualifying
local property tax rate, a flat grant per pupil paid by the state to all
school districts, and equalization aid for those districts where the school
revenue produced by the qualifying local property tax rate and the flat
grant does not equal the state foundation minimum of $355 per elementary
student and $488 per high school student. Additional equalizing effect is
provided through supplemental programs to subsidize particularly poor school
districts and also, through special areawide foundation programs in districts
included in reorganization plans disapproved at an election. Any school, dis-
trict may raise additional revenues by further property ta: levies.
The court, taking note of the fact that there were substantial differ-
ences in the amount of assessed valuation per pupil, and in the level of ex-
penditures per pupil among the school districts of the state, said that, as
a practical matter, school districts with small tax bases "cannot levy taxes
at a rate sufficient to produce the revenue that more affluent districts reap
with minimal tax efforts.' The court then went on to hold that, education
is a "fundamental" interest and that, where the protection of a "fundamental"
interest is conditioned on wealth, the equal protection clause of the Four-
teenth Amendment to the Federal Constitution is violated.
While the deral ground of the decision has been emphasized in dis-
cussion of the Serrano case, it should be noted that the California Supreme
Court held that the same considerations were governing in respect to an alle-
gation of unconstitutionality under Article I, sections 11 and 21 of the Cal-
ifornia Constitution. The court stated that it had previously construed
these provisions as "substantially the equivalent" of the equal protection
clause of the Fourteenth Amendment to the Federal Constitution.
The relief sought included a request for an order directing defendant
state and local finance and school officials to reallocate school funds to
remedy the alleged invalidity of the system, and also retention of juris-
diction by the court so that it might provide the necessary restructuring,
if the defendant officials and the state legislature failed to act within
a reasonable time. There was no order for relief, however, and the case
was remanded for a trial on the merits.
The decision in the Serrano case was on the pleadings; all allega-
tions in the complaint were accepted as true for purposes of the proceedings.
The defendants demurred to the complaint, and it was sustained; the plain-
tiff failed to amend the complaint, and the action was then dismissed. The
supreme rourt reversed the order dismissing the complaint, and remanded the
case to the trial court, with directions to allow defendants a reasonable
time within which to answer the allegations in the complaint.
Subsequently, on October 21, 1971, the California Supreme Court issued
a modification of i 3 earlier opinion emphasizing that its decision was not
a final judgment on the merits, and pointing out for the benefit of the trial
court on remand that, if after further proceedings, the trial court should
enter final judgment determining tha the existing system of public school
financing is unconstitutional and invalidating the system in whole, or in
part, it might properly provide for the enforcement of the judgment in such
a way as to permit an orderly transition from an unconstitutional system.
The court also said:
Obviously, any judgment invalidating the existing system
of public school financing should make it clear that the
existing system is to remain operable until an appropri-
ate new system, which is not violative of equal protec-
tion of the laws, can be put into effect.
This modification was apparently intended to dispel any doubt about
the validity of property tax assessments for educational purposes pending
final disposition of the case.
Thus far, no answer has been filed, and no date has been set for the
trial of the Serrano case in the Los Angeles County Superior Court. The
Attorney General of California has recently (January 1972) announced that
he would not seek review of the California Supreme Court's decision. Appar-
ently, this had been regarded as an alternative course of action in the pres-
ent posture of the case.
On October 12, 1971, the United States District Court, D. Minnesota
3d Div. in Van Dusartz et al. V. Hatfield et al. held the Minnesota public
school finance system unconstitutional under the equal protection clause of
the Fourteenth Amendment to the Federal Constitution. The case was heard on
affidavits and a motion to dismiss. The opinion follows that in the Serrano
case very closely. The issue as stated by the court was whether pupils in
publicly financed elementary and secondary schools enjoy a right, under the
equal protection guarantee of the Fourteenth Amendment, to have the level
of spending for their education unaffected by variations in the taxable
wealth of their school district or their parents. "Plainly put, the rule
is that the level of spending for a child's education may not be a function
of wealth other than the wealth of the state as a whole." The Minnesota pub-
lic school finance system was substantially similar to that in California.
There was a qualifying tax rate supplemented by state grants to provide $404;
in addition, every district was guaranteed a minimum grant of $141 per pupil.
The Minnesota financing system under challenge had actually expired at the
time the district court heard the case, although a new financing program had
not yet been enacted by the legislature. The court retained jurisdiction of
the case, but deferred further action until after the adjournment of the legis-
lative session.
Van Dusartz was one of several cases filed in the United States District
-:-
Court in Minnesota. Some of them also raised questions under the constitu-
tion and laws of Minnesota. As to these cases, the District Court denied
the motions to dismiss the complaints, but postponed rulings on the other
issues presented in them. After the Minnesota legislature revised the pub-
lic school finance system, the other cases, save one, appear to have been
dismissed by stipulation. The e is one action still pending which, by
way of an amended complaint, raises questions about the effect of the Minne-
sota property classification system in relation to school finance.
On December 23, 1971, following a trial, a three-judge United States
District Court in San Antonio held that the Texas system of financing pub-
lic elementary and secondary education violates the equal protection clause
of the Fourteenth Amendment to the Federal Constitution. The case is Rod-
riguez et al. V. San Antonio Independent School District et al.
The system in Texas utilizes revenues from the Available School Fund
(allocated on a per capita basis) and the Minimum Foundation Program, of
which 20 percent is derived from the school districts of the state through
the Local Fund Assignment. An Economic Index 1 is used to determine each
district's share of the Local Fund Assignment. These funds may be supple-
mented by local lovies for school purposes.
The cour characterized the Texas system as one which assumes that
the value of property within the various districts will be sufficiently
equal to sustain comparable expenditures from one district to another. The
court said: "It makes education a function of the local property tax base.
The adverse effects of this erroneous assumption have been vividly demon-
strated at trial through the testimony and exhibits adduced by the plaintiffs. "
1 The accuracy of the Economic Index is involved in separate litigation, Fort
Worth Independent School District V. Edgar.
The court also disposed of contentions that federal funds should be consid-
ered in appraising educational opportunity on an overall basis by citing
decisions holding that federal educational funds designed to meet special
needs in disadvantaged schools cannot be employed as a substitute for state
aid, nor can state aid be reduced in districts receiving federal "impacted
areas" aid.
The order of the three-judge court enjoined the enforcement of the
provisions of the Texas Constitution and Statutes relating to the financing
of education, and ordered the Commissioner of Education and the members of
the State Board of Education to reallocate funds (including funds derived
from taxation of real property by school districts), available for support
of the school system, in such a manner as not to violate the equal protec-
tion clauses of both the Texas and Federal Constitutions. The court stayed
the mandate in the case for a period of two years, in order to afford the
defendants and the legislature an opportunity to take steps to change the
system, and in the event no action is taken in this period, the court said
it would take such step as may be necessary to implement the purpose and
spirit of its order.
A subsequent "clarification" of the court's original opinion made it
clear that any order issued shall have prospective application only, and
shall not become effective until the expiration of two years from December
23, 1971; and that any order shall in no way affect the validity of school
district debts or other obligations now outstanding, or incurred within the
two-year period, nor taxes levied or other sources of revenue to be used
for the payment of such debts or other obligations.
From a procedural standpoint, the Texas case is perhaps the most sig-
nificant of all, since it has been tried on its merits before a statutory
three-judge court whose decision may be appealed directly to the United
States Supreme Court.
On January 19 in Robinson et al. V. Cahill ct al., a New Jersey Su-
perior Court jud, held, after trial, that the state's system of financing
public school education was unconstitutional, and in violation of both the
New Jersey and Federal Constitutions. The urban municipalities of Jersey
City, Plainfield, Paterson and East Orange were among the plaintiffs in
the case. In an extensive opinion which covered a number of issues, in-
cluding the relationship between the level of expenditures and the quality
of education, and the meaning of the education clause in the New Jersey Con-
stitution, the court held that the present system discriminates against pu--
pils in districts with low property wealth, and against taxpayers by imposing
unequal burdens for a common state purpose. While the present system is un-
constitutional, the court said the present system will be continued in effect
until enjoined by the court. To allow time for legislative action, there will
be no injunction prior to January 1, 1974, but if a nondiscriminatory system
of taxation is not enacted by January 1, 1973, then from after that date, no
state money shall be distributed for "minimum support aid" or for the "save
harmless" p: ovisions of the present law. All funds thus set free shall be
distributed by state officials so as to raise guaranteed valuations under the
present law to the highest level that a proportionate distribution of funds
will permit. The court also stated that the order for judgment should in-
clude specific provisions to assure the validity and enforceability of past
and future acts and obligations incurred under existing laws, as long as
they remain operative.
At about the same time, a New York Supreme Court justice (trial court)
in Westchester County dismissed the complaint in Spano V. Board of Education,
167 New York Law Journal No. 16 (January 24, 1972) p. 21, a suit chal-
lenging the financing of public schools in that state. The action was
brought by a local resident who complained that he had to pay higher pro-
perty taxes for school support than residents in other districts of the
state. The court held that the complaint did not state a cause of action
under present United States Supreme Court rulings.
In declining to follow the Serrano decision, the judge indicated
that it was the better policy to rest his decision on current law, rather
than to anticipate some change or modification of earlier opinions by
the United States Su₁ eme Court.
Serrano-type suits or related actions are pending, or have been
decided, in 20 or more jurisdictions. It is likely that the next state
supreme court determination will be forthcoming from Michigan. The
supreme court of that state has agreed to take jurisdiction of an Ing-
ham County Circuit Court suit filed by the governor, attorney general,
state treasurer and other officials against the Bloomfield Hills, Dearborn
and Grosse Pointe public school systems to test the validity of public
school financing in Michigan. The superior court of Maricopa County, Ari-
zona, has held that a Serrano-type complaint states a cause of action
(Hollins et al. V. Shofstall et al., January 13, 1972); subsequently plain-
tiffs filed a motion for summary judgment on the ground that there is no
genuine issue as to any of the material facts in the case.
Related issues in public school finance are involved in proceedings
pending or decided in several other states. These include Alabama, where a
three-judge United States District Court has directed the state commissioner
of revenue to equalize the assessment of all taxable property at its full
value within one year. One group of plaintiffs in this case alleged they
were deprived of school support funds because of underassessment of property
for state property tax purposes. Weissinger et al. V. Boswell, 330 F. Supp.
615 (1971).
In a case pending in Alaska, the plaintiffs contend that since the
state of Alaska pays all the costs for some schools operated directly by
the state, no local school district should be required to provide any local
funds for public education. Real Property Taxpayers' Association Inc. V.
State of Alasl , Docket No. 70-771, Alaska Court of Appeals.
In Florida, 1968 legislation included a provision known as the "Mil-
lage Rollback Law, which required a local L hool district to limit its ad
valorem taxes for school purposes to 10 mills as a condition of eligibility
for state aid payments. A three-judge United States District Court held the
provision unconstitutional (Hargrave V. Kirk, 313 F. Supp. 944), but the judg-
ment was vacated, and the case remanded by the United States Supreme Court on
the ground that a similar action challenging the validity of the rollback law
under the Florida constitution was pending in the courts of the state. Ask ew
et al. V. Hargrave et al., 401 U. S. 476 (1971).
On remand, the plaintiffs decided not to proceed further and the case
was subsequently dismissed by stipulation. Thereafter, the plaintiffs in
the state court case, School Board of Broward County V. Christian, decided
not to press the suit with the result that there has been no final adjudica-
tion of the legality of the rollback provision.
In Virginia, a United States District Court judge has ordered the
school systems of the city of Richmond and the neighboring counties of Hen-
rico and Chesterfield to consolidate. Bradley et al. V. School Board of the
City of Richmond et al., F. Supp. (January 10, 1972). While the
principal issue in this case is segregation, the order has far-reaching
financial implications because the court directed the State Board of
Education to submit a plan covering the financial operation of the com-
bined system within 60 days, and provided for the transfer of title to
the newly created consolidated school board in July 1972. The court's
order was subsequently stayed, pending an appeal to the United States
Court of Appeals for the Fourth Circuit.
The Wyoming Supreme Court, in a school district consolidation
case, suggested legislation imposing a state-wide equalizing property.
tax and announced it would retain jurisdiction of the proceeding until
the next session of the legislature. Sweetwater County Planning Commit-
tee etc. V. Hinkle et al. 491 P. 2d 1234. However, the court subse-
quently relinquished jurisdiction to permit the consolidation controversy
to be resolved under isting law. A United States District Court in the
District of Columbia held, in Hobson V. Hansen, that per pupil expenditures
in any single elementary school shall not deviate from the mean for all by
more than 5 percent except on the basis of adequate justification approved
in advance by the court.
Revision of School Finance
The issues involved in the Serrano-type cases have been discussed
for some years past in educational finance circles, and even prior to the
Serrano decision, revisions in educational finance programs have been under
study or enacted into law. The New Jersey Bateman Act which was under attack
in Robinson V. Cahill is one example. In fact, the court strongly suggested
that, (the minimum support and flat grant provisions aside) if the finance
support system established in the Bateman Act had been fully funded, its
decision might have been otherwise.
Iowa: under legislation adopted in Iowa in 1971, the foundation pro-
gram is based on the average per pupil expenditures state-wide modified by
a growth factor. Under this new plan, the state pays the difference between
the yield of a 20 mill foundation property tax plus miscellaneous district
revenues and 70 percent of the foundation program. The state payment will
rise one percent a year to a maximum of 80 percent of the foundation figure.
Locally, a maximum budget for each school district is set based on the dis-
trict cost per pupil for the preceding year plus a growth factor. The dif-
ference between this budget (subject to the maximum budget limitation) and
the amounts the school district will receive from the 20 mill foundation
tax, miscellaneous income and foundation aid, is the amount to be raised by
an additional property tax (subject to the district's maximum millage). A
school district may exceed its maximum budget only if the voters elect to
raise the additional revenue needed by a school district income tax. The
use of the property tax in financing school expenditures is thus restricted.
Minnesota: post-Van Dusartz legislation set a standard per pupil
cost for the state foundation program. Weighting factors are prescribed
to adapt th S standard to different school grades and exceptional re-
quirements. The state pays the difference between the yield of a quali-
fying tax rate and the foundation program. Any district may increase ex-
penditures (within existing rate ceilings) by 6 percent over the previous
year, and increases in excess of 6 percent may be authorized by the commis-
sioner of education. Excess levies not authorized by the commissioner are
penalized by a loss of 50¢ in state aid for each additional $1.00 of pro-
perty tax levied. Further adoption or broadening of sales or income
taxes by local governments was prohibited by other legislation. After
the enactment of the new school finance program, all but one of the suits
still pending after the Van Dusartz decision were dismissed presumably
because the new plan assures the funding of the basic program regardless
of district property tax resources.
Alabama: the legislature has proposed a constitutional amendment to
authorize classification of property for state and local property tax pur-
poses, and has enacted legislation providing for the reappraisal of pro-
perty in all counties of the state. This action is in partial response to
a federal court order, requiring the commissioner of revenue to equalize
all property tax assessments at full value within one year. The federal
court case was primarily concerned with the matter of unequal and discrimi-
natory property tax assessments, but school finances were also involved, be-
cause the yield of the state property tax was adversely affected by the low
county assessment levels.
Proposals for revisions in school finance systems have been intro-
duced in a number of the 1972 legislatures, but it is not unlikely that ma-
jor action in many states will await clarification of the constitutional is-
sues involved in the Serrano case. Special study commissions have been es-
tablished in some states and reports have already been issued by a few estab-
lished in prior years. The President's Commission on School Finance has also
submitted its report.
Study Commission Proposals
New York: in the three chapters of its proposed report which have
been published to date, the New York State Commission on the Quality Cost
and Financing of Elementary and Secondary Education (the Fleischmann Commis-
sion) has recommended full state funding of education cost, that is, that
the state take over the raising and distribution of all non-federal funds for
public schools. Educational expenditures would be "leveled up" to the per
pupil expenditure figure of the school district at the 65th percentile
(approximately $1,037) within three years. Expenditures of higher spending
districts would be frozen until expenditures in other districts had caught
up with them. The freeze would also act as a "save harmless" provision
with expenditures in excess of the property tax yield paid from state reve-
nues. Exceptional requirements for children with learning difficulties
would be subject to weighting factors. The property tax would be retained as
a state-wide levy to produce about the same amount of revenue presently
raised locally. A state tax rate of $2.04 per $100 would be made effective
over a five-year period, during which local property tax rates would be raised
or lowered 20 percent a year to arrive at the $2.04 standard. The Commission
also recommended that low income families paying more than 10 percent of in-
come in property taxes be permitted to credit the excess against the state
income tax. Renters would be entitled to a similar credit to the extent that
25 percent of rental payments exceeds 10 percent of income. Local options
for supplementary school levies would be prohibited. Funds in excess of those
produced by the $2.04 tax levy would come from general state sources. It was
estimated by the Commission that increases in costs of its program if enacted
in 1972-73 would be $125 million for "leveling up" to the 65th percentile,
$465 million for weighting factors for children with learning difficulties
and $125 million for property tax relief credits. The Commission also advo-
cated federal assistance for public education at a level equal to 25-30 per-
cent of total cost, compared with a current level of about 7 percent nation-
wide and 4 percent in New York.
New Jersey: the Governor's Tax Policy Committee report in New Jersey
included several recommendations on public school finance in its combination
package for the restructuring of the state's tax system. The Committee
recommended state fundin of substantially the full cost of public schools.
Local property taxes as a source of school support would be eliminated, ex-
cept for debt service and specially voted taxes for expenditures in excess
of the state funded program. A state-wide property tax of $1.00 per $100
of equalized value would be levied. School districts now spending more
money than what would be provided at the state support level would be per-
mitted to maintain present levels of expenditure. Local referendum approval
would be required for any districts seeking initially to increase spending
above state support levels. The basic expense cost per pupil would be de-
termined annually by the commissioner of education. This cost could not for
any year exceed a cost per pupil greater than 120 percent of the weighted
average expenditure by all school districts in the preceding year. Each
school district would be entitled to a distribution of its costs on a
weighted per pupil basis after taking into account basic inherent regional
cost differences. Local "leeway" expenditures, that is, expenditures in ex-
cess of the per pupil expenditures certified by the commissioner of education,
would be financed on a cost-sharing basis to achieve equalization. The state
would provide a district of average wealth with 50 percent of the cost of its
local leeway expenditures. For districts of greater or less wealth, the
state's share would vary inversely with the district's wealth per pupil. How-
ever, the state would not share in any cost per pupil exceeding 133 percent
of the current state certified program for the district, and the commissioner
of education would be authorized to prohibit >>penditures above that level.
Local property taxes for school purposes in New Jersey amount to about
$1.2 billion. At a $1.00 state rate, 519 districts would have tax reductions
totaling $561.3 million and 48 districts would have increases totaling $9 mil-
lion. The substitution of the $1.00 state levy for local property taxes for
school purposes would thus require about $555 million in replacement revenue.
Altogether about $600 million in non-property tax revenue would be needed to
support the proposed educational finance program in 1972-73.
Maryland: the Citizens Commission on Maryland Government, Incorpor-
ated has. issued a report which finds that the present state-aid formula
based on local property and income permits substantial disparities in local
school expenditures. The Commission recommended full state funding and the
elimination of all per pupil disparities to be phased out over a three-year
period so as to establish an equal per pupil expenditure in each of the
state's school districts at a level equal to that of the highest spending
district in 1970-71. A suit, Parker V. Mandel, challenging Maryland's school
finance system is pending in the United States District Court for the Dis-
trict of Marylar!.
Massachusetts: prior tc the Serrano decision, the Special Commission
to Develop a Master Tax Plan had recommended that the Commonwealth assume a
major portion of all local government costs including education. The program
would be financed by a state-wide property tax which would replace some cur-
rent local levies. The Commission also recommended that a ceiling be im-
posed on the proportion of property taxes to total taxes raised by the Com-
monwealth of Massachusetts and its local governments. Timilty V. Sargent et
al., a Serrano-type class action challenging the educational finance system
in Massachusetts, is pending in the United States District Court for the Dis-
trict of Massachusetts.
Michigan: the governor of Michigan and several state officials have
joined as plaintiffs in an action against several Michigan school districts
-16-
to challenge the educational finance system in that state (Milliken
et al. V. Bloomfield Hills School District et al.). At the petition
of the governor and other plaintiffs, the state supreme court has acted
to expedite a hearing on the constitutional questions. At the same
time, the governor began a drive to place an education and property tax
reform constitutional amendment on the ballot in 1972. The amendment
proposed calls for the elimination of the property tax for school oper-
ating purposes plus a reduction in the overall mill limit.
The amendment would be a mandate to the legislature to replace
local school property taxes with general state taxes, and to distribute
funds so as to assure an equal and quality education for all students.
The legislature would be authorized to enact a state-wide property tax
on business property for school operating purposes, if other replacement
proposals fail of enaciment.
Oregon: the governor has announced that he will propose a plan
to provide state financing of public school costs to be financed by
a state-wide property tax and increases in personal and corporation
income taxes. No further details on the proposal are available at this
time. The Oregon perintendent of public instruction has issued a re-
port "A Statement on School Finance in Oregon, " in which he discusses
several alternative school finance proposals. One is to provide 100
percent state support financed by a state-wide property tax with a
combination of other revenues (similar to the governor's proposal);
another is to discontinue the use of the property tax as a source of
revenue for local school operations, and a third is to establish a
single state-wide educational finance district. This last mentioned
proposal is an expanded version of the plan in the Mann-Eymann bill in
the 1971 legislative session in Oregon.
Other states where special study commissions are reviewing school
finance problems include: Arizona; California, where the Board of Equali-
zation has ronewed its earlier recommendation for a state-wide property tax
for school support; also, an implementing constitutional amendment to author-
ize equalization adjustments based on the Board's findings on local assess-
ment levels; Florida; Illinois, where the governor is serving as chairman
of the commission; Kansas; Texas; Washington and Wisconsin.
President's Commission on School Finance: the major financial rec-
ommendation in the President's Commission report is that, the states assume
substantially full responsibility for public school costs within a five-year
transitional period. To aid the states in assuming this responsibility, the
Commission suggested incentive payments inv lving additional federal funds
of from $4.6 to $7.8 billion, depending on which of several alternative plans
was adopted. These payments would be one-shot affairs designed to assist the
states in the transitional period. The Commission's report strongly empha-
sized the point that education was basically a responsibility of the states,
and did not comment on recent proposals for replacement of substantial amounts
of local property taxes for schools by new federal revenues.
The President's Request to the Advisory Commission on Intergovernmental
Relations: on January 20, 1972 the President requested ACIR to examine the
impact on intergovernmental relations of a tax reform proposal, which would
replace residential school property taxes with a federal value added tax; to
examine whether a federal value added tax is the best substitute for residen-
tial school property taxes; how the regressive effects of a value added tax
might be mitigated; how renter relief might be achieved under a proposal
which replaces residential school property taxes, and the best means of in-
suring local autonomy for schools under a system of school finance in which
the states have primary financing responsibility.
For discussion purposes a value added tax at a rate somewhere between
2 and 3 percent with a yield, depending on the exact rate and coverage, of
about $15 billion has been assumed. Of this total, perhaps $3 billion might
be subject. to tax credits to mitigate the regressiveness of the value added
tax, leaving $12 billion available for distribution to the states to replace
residential property taxes levied for the support of public schools.
In connection with the President's request, the dvisory Commission
has also directed its staff to study whether public schools can be adequately
financed from existing state and local revenue sources, and also various as-
pects of the property tax as a major revenue source.
Some Tentative Comments
While the Secrano and other decisions may have come as a surprise to
many, the basic fact that substantial reliance on district property taxes
produces inequities in educational opportunity and the distribution of educa-
tional costs has long been recognized. So, regardless of the ultimate deci-
sion on the constitutional issue, it seems to be a practical certainty that
these cases will serve as catalysts for the revision of educational finance
programs. It is also likely that these changes will not take place overnight.
In spite of the great amount of discussion which the cases have prompted, it
is probable that in many jurisdictions major cha: ges will await the final de-
termination of the constitutional issues invol ed, with whatever guidelines
might be provided in the process.
It also remains to be seen whether the United States Supreme Court will
adopt the "fundamental" interest interpretation of the Fourteenth Amendment
as applied to education in the Serrano, Van Dusartz and Rodriguez cases. It
has been noted that there is presently no United States Supreme Court case
directly in point. The California Supreme Court distinguished earlier (but
very recont) educational finance cases where the United States Supreme Court
had affirmed dismissal of the complaints. 2 The basis of the distinction was
that the issue in Serrano was different from that involved in the earlier
cases, but as the opinion in Spano V. Board of Education points out in some
detail, the record in the McInnis and Burruss cases made it "abundantly clear
that the United States Supreme Court was more than adequately alerted that
the issues to be reviewed were neither mundane nor insignificant.
It might also be noted that even if the Serrano principle is not sus-
tained on federal constitutional grounds, it might be upheld under comparable
state constitutional provisions or by interpretation of the education clause
of a state constitution, for example, as in Robinson V. Cahill.
Serrano and similar cases raise other points which merit careful con-
sideration. One is the extent to which governmental services related, for
example, to welfare, public safety or public health, might be judicially char-
acterized as involving "fundamental" interests within the meaning of the Ser-
rano principle, so that the extent and quality of service provided cannot be
made a function of district wealth. This is an issue with significant impli-
cations for state-local relationships everywhere. Consideration of this issue,
which some officials appear to regard as tantamount to opening a Pandora's box
of fiscal problem would be avoided to the extent that questions involving
educational opportunity and financing are decided by reference to specific
2
McInnis V. Shapiro, 293 F. Supp. 327 (N. D. Ill. 1968), aff'd memo sub nom.
McInnis V. Ogilvie, 394 U. S. 322 (1969); Burruss V. Wilkerson, 310 F. Supp.
572 ( W. D. Va. 1969), aff'd memo 397 U. S. 44 (1970).
education clauses in state constitutions.
Another point to be considered in connection with Serrano is the ex-
tent to which it may involve the courts in many intricate questions of edu-
cation policy associated with financing programs. It has been suggested
that Serrano is much preferable from a judicial standpoint to McInnis or
Burruss, because it does not require judicial intrusion into education policy
and finance questions, but rather only a simple declaration that the system
is valid or invalid by reference to constitutional standards. The assump-
tion seems to be that the courts will at most lay down broad guidelines and
thus afford states and local governments wide latitude in formulating educa-
tional finance programs that fall within those guidelines. There is much to
be said for this approach. The difficulty is, though, whether the line can
be drawn at that point once the fundamental test of the equal protection
clause becomes the formal standard for the adjudication of controversies in
this area.
Recent state legislation and reports of study commissions indicate
that some extremely important and very practical problems, both transitional
and permanent, are involved in the equalization of educational opportunity
and the distribution of educational costs. The nature and variety of these
problems suggest that local solutions, based on local needs, conditions and
traditions, may in the long run be more conducive to improvement in educa-
tional achievements than any approach that might turn out to be based on na-
tional, judicially prescribed standards, assuming of course, in any event, the
elimination of the systematic and substantial disparities so common where edu-
cational opportunity is a function of district property tax resources.
Among the practical problems that face state and local officials in
the equalization of educational opportunity are: determination of the criteria
by reference to which adequate support levels are established, including
the hotly debated relationship between the level of expenditures and educa-
tional achievement; provision for special expenditures for disadvantaged
pupils, the definition and needs of which may vary greatly even among school
districts in the same state; devising a leveling up program which does not
also entail some leveling down; the allowance within limits and without pen-
alty of some flexibility of choice in the matter of expenditures in excess
of the support standard or even in excess of a "save harmless" budget of a
previous year, so as not to stifle experimentation and innovation; and last,
but by no means least, the details of the financing required, which in some.
cases may mean sul stantial shifts in tax burdens.
A Note on the Property Tax
Local property taxes account for a major proportion of public school
revenues -- approximately $23-24 billion out of a total of about $45 billion
in state and local funds. Dospite some early fears to the contrary, there
is nothing in any of the recently decided school finance cases to indicate
that the property tax has to be al andoned as a source of school revenue. Pro-
vided that the educational finance system is not so structured that educational
opportunity is a function of district tax resources, the property tax may be
utilized as a revenue source on the same scale as presently, or on a greater
or lesser scale as each state may elect. Even at the district level, there
would be no objection to the use of a qualifying property tax rate utilized as
one element of a state support program so structured that differences in dis-
trict property tax resources did not in fact result in marked disparities in
educational opportunity among those districts.
In view of the substantial amount of public school revenues derived from
-22-
property taxes, it is a fair assumption that in most states the property tax
will continue to have an important role in school finance. One way to avoid
the district disparity objection is to levy a state-wide property tax for
school support purposes, and either prohibit or restrict locally levied school
property taxes. Almost without exception, post-Serrano discussions about the
revision of state-local school finance systems have mentioned the possibility
of a state-wide property tax as a major element in the new system. In two
state reports just issued, the Fleischmann Commission in New York and the Gov-
ernor's Tax Policy Committee in New Jersey, a state-wide property tax has
been officially recommended as an element in the new educational finance pro-
grams proposed. The likelihood of similar recommendations in other states
prompts a few c ments on the subject of a new state-wide property tax.
In many states the reinstatement of a state property tax will be a
practically new venture and a number of legal and administrative problems
may be involved in the process.
In some states a constitutional amendment would be required to author-
ize a state property tax for state purposes. Even where a state property
tax is permitted, it would be desirable to provide specific constitutional
authority for legislative action permitting the appropriate administrative
agency to adjust the state tax rate inversely to the assessment level pre-
vailing on local districts. 3 This method may be preferable to the more cum-
bersome process of raising or lowering local assessment rolls. It would also
be desirable to permit the administrative agency to raise or lower the assess-
ment level on state-assessed property allocated to local assessment districts
so that the adjusted state tax rate will apply to state-assessed property in
3
This point and the one following are analyzed in a memorandum prepared by the
Division of Property Taxes, California State Board of Equalization.
the same manner as to locally-assessed property in that district. This
procedure, too, might require specific constitutional sanction.
Another series of questions arise in connection with the adminis-
trative organization and facilities available at the state level. Is there
a state agency authorized to supervise the administration of the property
tax by local assessors and to determine the assessment levels prevailing in
local assessment districts? If there is such an agency, are its statutory
powers adequate to do the job? Is the agency staffed to do the job? It
might be noted in this connection that both the Fleischmann Commission (New
York) and the Governor's Tax Policy Committee (No./ Jersey) recommended the
strengthening of property tax supervisory functions in their respective states.
Despite many st tements to the contrary, the fact is that property
tax administration has improved significantly in the last i o ades, al-
though progress along these lines has been uneven among the states. Also,
for purposes of grant distribution programs, it has been possible in some
states to make adminis' rative adjustments in the formula to take account of
differences in assessment levels, particularly where no state assessed pro-
perty need be taken into consideration. This avoids the necessity of making
adjustments in the assessment rolls, either in the aggregate or by classes
of property. Under these circumstances, there may be no incentive to main-
tain an effective equalization program. Where a state property tax is in-
volved however, direct equalizing action is required. Either the assessment
rolls must be equalized or the state agency must adjust the state tax rate
inversely to the local deviation from the prescribed assessment standard.
In order to achieve that objective, it is likely that in a number of states,
the machinery for supervising the administration of the property tax must
4
be reinforced and in some cases revitalized.
Practically everywhere, the adoption of a state property tax will
be considered in the context of widespread or what is generally assumed
to be widespread dissatisfaction with the property tax as a major revenue
source of state and local government.
If the state-wide property tax is designed to produce about the same
amount of revenue previously raised by local property taxes for educational
purposes, there may be a considerable shift in the property tax payments
among local districts in those states, perhaps most, where there is pres-
ently a wide range in nomimal property tax rates. The shock of this change
may be dampened by transitional provisions.
This shift will be compounded (possibly, under some circumstances,
tempered) where there are substantial intradistrict differences in assess-
ment levels, and also, where there are interdistrict differences in assess-
ment levels. When this is the situation, the implementation of a state pro-
party tax will require an administrative operation of considerable magnitude
and complexity, including, in many cases, extensive reappraisal work. Any
serious political objection to the tax shifts involved would constitute a
further complicating factor.
These side effects of the inauguz tion of a state property tax may
well prompt a drive for the adoption of a classified property tax, particu-
larly in re pect to residential property or owner-occupied residential pro-
perty plus agricultural land. The adoption of such a program might mitigate
the shift in tax burdens for owners of properties favorably classified, but
4
For an excellent series of recommendations for the improvement of the admin-
istration of the property tax to this end, see The Role of the States in
Strengthening Property Tax Administration, by the Advisory Commission on
Intergovernmental Relations, Washington, D. C. 20575.
it would add another set of complications on the administrative side.
Legislative consideration of property tax problems pre-dating the Serrano
case plus these recent developments suggest that classification of real
property for ad valoren: tax purposes probably has more appeal today than
it has had for some years past.
School- Financing
GOVERNOR REAGAN'S FINANCIAL SUPPORT FOR PUBLIC EDUCATION
Tion
Budget
Budget*
Increase in
% Increase of
Year 1966-67
Year 1972-73 (Est)
Six Years
Enrollment in Six Yrs.
$--UP $204.4
State Colleges
$167.7
$372.1
Million
UP 78.4%
(Universities)
Million
Million
%--UP 121.9%
$--UP $143.2
Junior Colleges
$ 71.2
$214.4++
Million
UP 82.1 %
Million
Million
%--UP 201.1%
$--UP $136
U. C. System
$240.1
$376.5**
Million
UP 35.4%
Million
Million
%--UP 56.8%
$--UP $23.5
Million
State Student
$ 4.7
$ 28.2
----
Scholarships &
Million
Million
%--UP 500%
Loans
$--UP $645
State Funds+ for
$1.232
$1.877
Million
Public Schools
Up 12.7%
Billion
Billion
(K-14)
%--UP 52.4%
*All figures as budgeted in 1972-73 Governor's budget; subject to revision by legislative action &
periodic re-estimates of enrollment growth, etc.
**U.C. and State Colleges include operational budget plus proposed faculty salary increase for 72-73.
***72-73 FTE or ADA enrollment compared to 66-67.
+Total school subventions includes textbooks, teacher retirement funds, special programs, etc. Total
of NEW school funds supplied by State since 1967 is an annual net increase of $560 million.
++Does not include the Community College share of $42 million Teacher's Retirement or $65 million in
new aid.
Revised 1/12/72
Enrollment
1966-67
1972-73
%
Actual
Estimated
Increase
Public Schools (K-12) ADA
4,394,961
4,715,037
7.2%
Public Schools (13-14 Community
Colleges) (ADA)
341,985
622,973
82.1%
Total K-14 (ADA)
4,736,946
5,338,010
12.6%
State Colleges
130,468 FTE
232,700 FTE
78.4%
University of California
79,293 FTE
107,346 FTE
35.4%
January 18, 1972
Edine
BACKGROUND PAPER PREPARED BY GOVERNOR'S STAFF FOR THE GOVERNOR
NEA "STATISTICS"--
Adding Apples and Oranges?
Some confusion has been created by a National Education Association
report* purporting to show that California's contribution to public schools
has "slipped" to 31st in the nation.
Here
Attached is some material pointing out the background of this matter.
Basically, from the "estimates" and other information listed about this
latest NEA report and "rankings", it appears that they may have committed
the cardinal mathematical sin: adding apples and oranges and subtracting
grapefruit.
Their statistics are incomplete (in some states certain items of educa-
tional support are included and these same items are ommitted in the table
for California). This makes an accurate comparison impossible.
But this is the. essential point:
By some miracle of mathematics, California manages to pay virtually
the highest teacher salaries in the nation (3rd according to the latest
NEA "rankings"), educates more of its school age population in public school
than any other major state, provides more total state support than ever
before, yet annually finds itself accused of "slipping" in the amount of
its aid to public schools.
Here are some factual figures:
--In 1972-73, California has budgeted $1.877 billion for public schools
(K-14). This is about $645 million MORE in annual support for public
schools than the $1.232 billion the State provided in 1966-67, the final
year of the prior administration.
-Since 1967, the State has provided new money for schools four times total
ing an annual NET INCREASE of $560 million for the support of local schools
Yet the enrollment increased only 11.5 per cent between 1967 and 1971.
--This year's state budget includes roughly $222 million more money for
schools, including $135 million a year in teacher retirement funds (which
apparently was not attributed to California by the NEA).
--The State is putting in $65 million in 1972-73 of new money over and above
the existing formulas.
Points on NEA education "statistics":
--It is impossible to make a definitive comparison between California and
other states' contribution to education based on. the NEA statistics. Their
recent "rankings" of the states have not been based on actual financial
data from the State, but instead are based on NEA "estimates" or "trends".
*The NEA publication coincided with that organizations efforts to have the
federal government provide more funds for education.
2
Each state also has a different school financing structure and may or may
not include the same items in computing total school aid.
--The validity of the NEA statistics and "rankings" have been a matter of
some dispute for several years. Several states, including California, have
sought to encourage the NEA to use precise figures and for uniformity, to
count the same contributions in each state for more accurate comparability.
--A Finance Department analysis of a 1969 NEA report sent to the California
Association of School Administrators includes these comments:
"It is my observation that any of the tables reporting to rank the states
in order of expenditures are totally unreliable, as related to state and
local expenditures. The National Education Association picks up their
expenditure figures from a variety of sources
There is no uniformity in treatment among the states of most classification
accrual versus cash accounting, program definitions, reporting of state
expenditures, reporting or lack thereof of local expenditures, assignment
of overhead costs or lack thereof, inclusion or exclusion of state-run
schools, inclusion or exclusion of bond interest and redemption, defini-
tion of expenditures in connection of bond interest, and so forth among
the 50 states. These are but a few of the major problems and we know
there are many others.
It is suggested that you and your organization give serious consideration
toward exerting your influence through the National Education Association
to make this research document a meaningful publication. The publication
has a wide readership and is attributed a validity that it does not possess
Even the news media accepts its findings at face value."
--The NEA report "estimates that California will spend $835 per pupil dur-
ing the current school year". But this is only for what is labeled "cur-
rent expense of education" in the accounting procedures. Unfortunately,
the manner in which it is presented carries a strong implication that this
is the total cost of education, which it is not. In some states, it may
represent the total cost, and in others, such as California, it does not.
In California the total cost can be estimated at slightly more than $1,000
depending what is included. How wrong is NEA in other states as well?
--As reported in newspapers, NEA ranked California 22nd in expenditures
for 1969-70..' If this were the case, it is also worth noting that the Educa
tion Commission of the States reported that California was third in per
capita state and local tax burden for that same period. Last year's NEA
Rankings noted that California was third as well in the percentage increase
of public high school graduates in the five-year period ending in 1969-70.
Whatever else the NEA rankings of expenditures measure, they apparently
do not account for either the input from the taxpayers on one hand or the
output of the educational process on the other.
--New York State, for example, lists in its 1971-72 budget some $2.306 bil-
lion in general state support for public schools. But that amount included
$214.3 million for school building aid
20.0 million for textbooks
23.0 million for an item entitled "high tax aid"
For the same year, California budgeted $1,522.8 million for public schools
(K-12). But that figure did not include such monies as state contributions
for teacher retirement ($135 million in 1972-73), construction funds, debt
service ($65 million in 1972-73), or the $344 million the State spent for
ongoing tax relief programs, including $235 million for homeowner property
tax relief and $8.6. million for senior citizens tax relief. The money
California earmarks for homeowner tax relief may be comparable to New York's
"high tax aid" category.
If all those missing components were added, California's per pupil expendi-
ture would probably go up at least $100 more per pupil or even more if
state property tax relief financed is included.
--According to the NEA, New York will spend roughly $1,468 per pupil compare
to $835 they list for California. If these figures were accepted, Californi
would have to spend $633 more per pupil for the estimated 4,657,440 students
in K-12 during 1972-73 to match New York. That would amount to some $2.9
billion more dollars. Yet even using NEA statistics, New York is spending
only $1 billion more for school aid. Something obviously is missing from
their figures.
Education
School Financing
NEA "STATISTICS"-
Adding Apples and Oranges?
Some confusion has been created by a National Education Association
report* purporting to show that California's contribution to public schools
has "slipped" to 31st in the nation.
Attached is some material pointing out the background of this matter.
Basically, from the "estimates" and other information listed about this
latest NEA report and "rankings", it appears that they may have committed
the cardinal mathematical sin: adding apples and oranges and subtracting
grapefruit.
Their statistics are incomplete (in some states certain items of educa-
tional support are included and these same items are ommitted in the table
for California). This makes an accurate comparison impossible.
But this is the essential point:
By some miracle of mathematics, California manages to pay virtually
the highest teacher salaries in the nation (3rd according to the latest
NEA "rankings"), educates more of its school age population in public schools
than any other major state, provides more total state support than ever
before, yet annually finds itself accused of "slipping" in the amount of
its aid to public schools.
Here are some factual figures:
--In 1972-73, California has budgeted $1.877 billion for public schools
(K-14). This is about $645 million MORE in annual support for public
schools than the $1.232 billion the State provided in 1966-67, the final
year of the prior administration.
--Since 1967, the State has provided new money for schools four times total-
ing an annual NET INCREASE of $560 million for the support of local schools.
Yet the enrollment increased only 11.5 per cent between 1967 and 1971.
--This year's state budget includes roughly $222 million more money for
schools, including $135 million a year in teacher retirement funds (which
apparently was not attributed to California by the NEA).
--The State is putting in $65 million in 1972-73 of new money over and above
the existing formulas.
Points on NEA education "statistics":
--It is impossible to make a definitive comparison between California and
other states' contribution to education based on the NEA statistics. Their
recent "rankings" of the states have not been based on actual financial
data from the State, but instead are based on NEA "estimates" or "trends".
*The NEA publication coincided with that organizations efforts to have the
federal government provide more funds for education.
2
Each state also has a different school financing structure and may or may
not include the same items in computing total school aid.
--The validity of the NEA statistics and "rankings" have been a matter of
some dispute for several years. Several states, including California, have
sought to encourage the NEA to use precise figures and for uniformity, to
count the same contributions in each state for more accurate comparability.
-A Finance Department analysis of a 1969 NEA report sent to the California
Association of School Administrators includes these comments:
"It is my observation that any of the tables reporting to rank the states
in order of expenditures are totally unreliable, as related to state and
local expenditures. The National Education Association picks up their
expenditure figures from a variety of sources
There is no uniformity in treatment among the states of most classifications,
accrual versus cash accounting, program definitions, reporting of state
expenditures, reporting or lack thereof of local expenditures, assignment
of overhead costs or lack thereof, inclusion or exclusion of state-run
schools, inclusion or exclusion of bond interest and redemption, defini-
tion of expenditures in connection of bond interest, and so forth among
the 50 states. These are but a few of the major problems and we know
there are many others.
It is suggested that you and your organization give serious consideration
toward exerting your influence through the National Education Association
to make this research document a meaningful publication. The publication
has a wide readership and is attributed a validity that it does not possess.
Even the news media accepts its findings at face value."
--The NEA report "estimates that California will spend $835 per pupil dur-
ing the current school year". But this is only for what is labeled "cur-
rent expense of education" in the accounting procedures. Unfortunately,
the manner in which it is presented carries a strong implication that this
is the total cost of education, which it is not. In some states, it may
represent the total cost, and in others, such as California, it does not.
In California the total cost can be estimated at slightly more than $1,000
depending what is included. How wrong is NEA in other states as well?
--As reported in newspapers, NEA ranked California 22nd in expenditures
for 1969-70.' If this were the case, it is also worth noting that the Educa-
tion Commission of the States reported that California was third in per
capita state and local tax burden for that same period. Last year's NEA
Rankings noted that California was third as well in the percentage increase
of public high school graduates in the five-year period ending in 1969-70.
Whatever else the NEA rankings of expenditures measure, they apparently
do not account for either the input from the taxpayers on one hand or the
output of the educational process on the other.
--New York State, for example, lists in its 1971-72 budget some $2.306 bil-
lion in general state support for public schools. But that amount included:
3
$214.3 million for school building aid
20.0 million for textbooks
23.0 million for an item entitled "high tax aid"
For the same year, California budgeted $1,522.8 million for public schools
(K-12). But that figure did not include such monies as state contributions
for teacher retirement ($135 million in 1972-73), construction funds, debt
service ($65 million in 1972-73), or the $344 million the State spent for
ongoing tax relief programs, including $235 million for homeowner property
tax relief and $8.6. million for senior citizens tax relief. The money
California earmarks for homeowner tax relief may be comparable to New York's
"high tax aid" category.
If all those missing components were added, California's per pupil expendi-
ture would probably go up at least $100 more per pupil or even more if
state property tax relief financed is included.
--According to the NEA, New York will spend roughly $1,468 per pupil compared
to $835 they list for California. If these figures were accepted, California
would have to spend $633 more per pupil for the estimated 4,657,440 students
in K-12 during 1972-73 to match New York. That would amount to some $2.9
billion more dollars. Yet even using NEA statistics, New York is spending
only $1 billion more for school aid. Something obviously is missing from
their figures.
1/72
AUGUST 30, 1971
Franking
STATEMENT OF HOUSTON I. FLOURNOY, STATE CONTROLLER, RELATIVE TO THE CALIFORNIA
SUPREME COURT DECISION HOLDING CALIFORNIA'S SCHOOL FINANCING SYSTEM UNCONSTITUTIONAL:
Although I have not had an opportunity to read the 63 page text of today's
decision by the State Supreme Court, it would appear that this historic decision
could result in increased educational opportunity for the majority of California's
school children and could benefit the great majority of property taxpayers in the
State.
For many years, I have fought to equalize the burden of financing our schools
and lessen the dependence of education opportunity upon the value of property in a
school district. Currently, one dollar of tax rate in Beverly Hills raises ten
times the dollars for schools as one dollar of tax rate in West Covina. It is
unjust to ask homeowners to pay heavy property taxes for schools when islands of
wealth in the state escape with a relatively light burden.
If this decision is ultimately applied and withstands appeal, I assume it will
force the adoption of a uniform statewide property tax for schools to replace the
present system with its wide variation as to tax rates. Further, it will
probably result in some shifting of the costs of school finance from the local to
the state level. I believe the average homeowner would definitely benefit if these reform
are enacted into law.
came School Known
For Further Information
Call Winifred L. Hepperle
Serrano V. Priest
(415) 557-2326
FOR SIMULTANEOUS RELEASE:
ON MONDAY, AUGUST 30 at 11:00 a.m.
IN SAN FRANCISCO, LOS ANGELES
AND SACRAMENTO
NEWS RELEASE # 111
CALIFORNIA SCHOOL FINANCING SYSTEM HELD
UNCONSTITUTIONAL BY SUPREME COURT
The California Supreme Court today held that the public school
financing system is unconstitutional because it discriminates against
the poor.
The 6-1 opinion written by Justice Raymond L. Sullivan states
that the educational funding scheme "makes the quality of a child's edu-
cation a function of the wealth of his parents and neighbors. Recogniz-
ing as we must that the right to an education in our public schools is
a fundamental interest which cannot be conditioned on wealth, we can
discern no compelling state purpose necessitating the present method
of financing. We have concluded, therefore, that such a system cannot
withstand constitutional challenge and must fall before the equal pro-
tection clause."
The Legislature, under authority of the State Constitution,
presently authorizes local governing bodies to levy real property taxes
for educational needs. This dependence on local real property taxes
was pinpointed by the Court as the root of the constitutional defect
in the educational financing system. About 56 percent of school funds
derive from property taxes, 35 percent from State aid and the remainder
from federal and other sources. Thus, the Court notes, the amount a
school district can spend depends largely on its tax base, that is, the
assessed value of real property within its borders. These tax bases
vary widely throughout the state, ranging from a low of $103 per child
to a peak of $952,156--a ratio of nearly 1 to 10,000.
"Although the amount of money raised locally is also a func-
tion of the rate at which the residents of a district are willing to
tax themselves, as a practical matter districts with small tax bases
simply cannot levy taxes at a rate sufficient to produce the revenue
that more affluent districts reap with minimal tax efforts," the Court
declared. Thus, affluent districts can have their cake and eat it too:
they can provide a high quality education for their children while pay-
ing lower taxes. Poor districts by contrast, have no cake at all. If
The Court found that although distributions of state funds
partially alleviates these disparities there are still wide differentials
in per pupil expenditures among various school districts. These varia-
tions, the Court ruled, violate the equal protection clause of the Four-
teenth Amendment to the Federal Constitution.
The 63-page decision contains an extensive analysis of the
role education plays in modern society. The Court stated, "We are con-
vinced that the distinctive and priceless function of education in our
society warrants, indeed compels, our treating it as a 'fundamental in-
terest. 111 In this context the Court referred to previous U.S. Supreme
Court decisions invalidating legislative classifications based on wealth
where other Fundamental interests" such as rights of criminal defendants
and voting rights, were involved.
The Court further ruled that the present financing scheme was
not necessary to maintain decision-making at the local level. Adminis-
trative control can still be left in the hands of the school districts,
the Court said, no matter how the state decides to finance its educa-
tional system. Also, the Cour pointed out that the present fiscal
Could not be consid
Jessary to promoting local financial
choices since "only a district with a large tax base will truly be able
to decide how much it really cares about education. The poor district
cannot freely choose to tax itself into an excellence which its tax
rolls cannot provide. II
Today's decision came in a lawsuit brought by a group of Los
Angeles County public school children and their parents as a class ac-
tion against county and state officials. The parents and their children
sought a judicial declaration that the school financing system is un-
constitutional and an order directing the public officials to restruc-
ture the system to remedy the invalidity. The trial court had dismissed
the action on the ground that a valid legal claim was not presented.
By its action today the Supreme Court directed the lower court to hear
the parents' contentions and returned the case for trial.
Justice Marshall F. McComb dissented.
#
or to make a political
point thout telling the full
STOZY,
Edwi
School Financi
1. Those seeking more financial aid for public schools sometimes cite
the State School Fund apportionment totals (average daily attendance
allocations) --as if these were the only state funds allocated to public
education.
As Legislative Analyst A. Alan Post has observed, the school apportionment
funds is "an inaccurate picture of the state's effort regarding public
education because it does not reflect other educational expenditures
appropriated through budget action.'
2. These other funds are known as subventions and are appropriated to
provide additional financial support to public schools. The list includes
$91 million for teachers' retirement fund contributions in 1970-71, $21.3
million for free textbooks, $53.5 million for paying the debt service
(interest charges) on school construction bonds, etc. The combined total of
the basic average daily attendance funds and the other subventions make up the
State's Total Subventions to public schools and constitute the State's Share
of State-Local financing for education.
3. In 1966-67, the final budget year of the previous administration,
Total State Subventions for public schools K-14 amounted to $1.220 billion
(Table 14, Legislative Analyst's report). This represented a state share of
41.04% of total State-Local revenues.
4. The 1970-71 budget allocates approximately $1.753 billion in Total
State Subventions or $533 million more in annual aid this year than in
1966-67. This is a percentage increase of about 43% over four budget years.
5. In 67-68 the first year of the Reagan administration, Total School
Subventions were $1.441 billion in dollars and about 42.36% in percentage.
2.
For 1968-69, Total State Subventions for public schools amounted to
$1.504 billion, or about 41.92% of tdal State-Local spending for public
schools.
The State's percentage share of total State-Local school revenues for
1970-71 and 1969-70 cannot be determined finally until complete actual
spending figures by local districts are compiled. However, the State
Finance Department estimates that the State's overall percentage share of
State-Local school costs should be up a percentage point or two (to about
42 or 43%) in 1969-70 and 1970-71 because:
(a) Governor Reagan included $120 million of new school aid in his
1969-70 budget, the first time such an increase ever has been proposed in a
Gov ernor's original budget. The Governor also agreed to add certain other
fund surpluses to school aid. The final total amount of new state school
revenue as a result of those two actions amounted to an estimated $187 million
in Fiscal 1969-70.
(b) During 1970 Legislature, Governor Reagan proposed a cost-of-living
increase of new school revenue for 1970-71. The Legislature finally agreed
on a net of about $98 million of additional school funding for Fiscal 1970-71.
(c) Schools also received an infusion of new school support in 1967-68
through AB 272 (Unruh), the bill that became the concensus school finance
measure of 1967. Governor Reagan signed this measure. It was originally
figured to add about $145 million, but ultimately added about $211 million
to school aid funds.
HOWEVER, the money to pay for AB 272's increased school aid was possible
only because the Reagan administration sponsored SB 556, the 1967 tax bill to
correct the fiscal chaos that the previous administration had left in state
government. (Unruh voted for the tax bill).
*When
Jesse Unruh was Assembly Speaker and controlled a massive legislativo
majority, he often was listed as lead author on desirable bills which became
law.
3.
COMPLEX FORMULA
Governor Reagan feels (and many others share this view) that the
present complex formula for apportioning school funds is not equitable,
particularly for poorer districts. He also feels the burden of local
property tax payers is too high.
That is why in 1969, the Reagan administration proposed a major tax refor
program which would have resulted in the State assuming an estimated 80
percent of local school costs. The plan was defeated.
In 1970, his major tax reform program originally included a school
equalization formula which would have provided additional funds for about
80% of California's local school districts. Amendments offered by a Democrati
member of the Legislature resulted in the elimination of the school
equalization part of the 1970 tax reform program which finally lost by one
vote in the State Senate after gaining the support of 93 of the 119 members
(one vacancy) of the Legislature.
50-50 SHARING
Governor Reagan campaigned for and has worked to attain the goal of
having the State provide 50% of local public school costs. (The last time
the State's total share of public school subventions approached the 50%
level was in the mid-1950's during the Knight administration). The 50-50
ratio never was achieved during the eight years of the prior administration.
In 1958-59, the year the previous administration took office, total
school subventions were 45.8% As noted previously, the percentage was
41.04% in 1966-67, the final budget year of the prior administration.
Educ.
State of California
OF
GOVERNOR'S OFFICE
SACRAMENTO 95814
RONALD REAGAN
GOVERNOR
December 1. 1970
TO: Cabinet & Senior Staff
FROM: Youth Affairs (Gary Hunt & Tom Baker)
RE: Attached survey
The attached survey was a random sample of 288 students
at California State College at Long Beach. It was administered
on two diffrent days and evenings. The survey was taken
by Mr. Terry Friedman.
The survey was taken in classroom settings, with sizes
ranging from ten to forty-five students. The students were
selected by a random number generating system program.
We would like to draw your attention to numbers 9 and 11.
We believe the high percentage of students voicing their approval
of their Student Presidents meeting with the Governor (83.5%)
not only speaks well of the Governor and the Presidents, but
also points out that the students believe this communication
link should be continued and expanded.
We also would draw your attention to number 15, which shows
the breakdown of age, ethnic background, financial responsibilities,
and other pertinent personal information of those students polled.
Number 15 also indicates that 84.2% of those polled were of
voting age.
1. Do you favor or oppose the serving of beer in the College Union?
Favor
62.8
Oppose
33.7
Don't Know
3.5
2. How often do you drink beer?
Often
17.5
Sometimes
42.5
Seldom
21.1
Never
18.9
3. When do you think Campus Police should be able to carry guns on campus?
At all times
36.5
During the day
0
During the evening
16.1
Only if a conflict on
36.5
campus warrants it
Never
10.9
4. Do you read the Forty-Niner newspaper?
Yes
93.7
No
6.3
5. If the answer is Yes answer this question. How often do you read the
Forty-Niner?
Every Issue
28.5
FrequentlyMost of the time 49.5
Sometimes
22.0
6. of what quality do you think the Forty-Hiner is?
Excellent
6.3
Good
38.3
Fair
39.3
Poor
14.0
Don' Know
2.1
7. What do you think is the prime function of the college campus?
Total
8. Function Is California State College Long Beach accomplishing this function?
Yes
No
Don't Know
49. 4Education
73.1
T4.2
12.7
3.5Career Preparation
90.0
10.0
0
23.2F Thinking, Learning
48.5
38.0
13.5
2.110 Give Degrees
84.0
16.0
0
9.8 Don't Know
32.1
7.2
60.7
4.6Social
53.8
46.2
0
2.8Provide Community Service
50.0
25.0
25.0
4.6Antagonistic Answer
76.9
23.1
0
9. Dr you favor or oppose the Student Advisory Council that will be meeting
with Covernor Reagan each month?
Favor
83.5
Oppose
11.2
Don't Know
5.3
10. Would you favor or oppose the employment of student assistants to the
Dean of Students on the state colleges? These students should be
directly involved in all administrative decisions regarding student
offairs and should be selected either by direct election or with the
consent of the student body.?
Favor
81.4
Oppose
16.8
Don't Know
1.8
II. Would you favor or oppose the Covernor appointing a student representative
to the Board of Trustees and the Board of Regents?
Favor
71.9
Oppose
27.0
Don't Know
1.1
12. Which figure below comes closest to the state expenditure per year per
student in the State College System?
$100
5.6
$500
20.0
$1000
24.2
$1500
26.0
$2000
18.2
Don't Know
6.0
13. If tuition is initiated in the State College System would you favor or
oppose a go now pay later plan, with twenty years to pay?
Favor
70.2
Oppose
27.7
Don't Know
2.1
14. What do you think the letters E.O.P. mean.
15. Do you favor or oppose E.O.P: funding on the State College compuses?
Total
Function
Yes
No
Don't Know
36.8 Educational Opportunity
79.8
T8.4
7.8
Program
8.1 Understanding of E.O.P.
78.3
8.7
13.0
12.3 Equal Opportunity Program
71.5
17.1
11.4
15.8 Economic Opportunity
71.4
17.6
11.0
Program
27.0 Don't Know
11.7
6.5
81.8
Age
Race
78
3.5
Caucasian
87.0
19-20
12.3
Mexican-Anerican
3.5
2/-22
50.5
Blach-(nfro-Anerican)
2.8
23-24
10.2
25-28
13.7
84.2%
Oriental
3.9
Other
2.8
Over 28
9.8
Marital Status
Units being attempted
Single
60.0
Under 10
14.1
Engaged
8.1
10 or over
85.9
Married
29.4
Divorced 2.5
Financial Support
Completely self-supporting
47.4
Parents paying all expenses
11.6
Parents sharing expenses with you
38.6
In school on full scholarship
in
In school on partial scholarship
2.1
Class Standing
Sex
Freshman
4.6
Male
59.7
Sophomore
3.5
Female
40.3
Junior
34.0
Senior
45.2
Graduate-Student
12.7
WIRE TO COMMUNITY COLIEGE PRESIDENTS
Edne
May 6, 1970
Straight wire
It is essential for our college and university faculties,
students and administrators to reflect on the grave
consequence of current events the consider their respon-
sibilities to themselves and to our society. In order
to afford them this opportunity, away from the highly
emotional conditions now prevailing on most campuses,
I have today asked President !fitch and Chancellor Dumke
to close the University and State College campuses for
two days and over the weekend.
President Hitch and Chancellor Dumke strongly concurred
in my recommendation, and accordingly have taken the
necessary action for implementation. All campus facili-
ties will be closed during this period.
I hope that this period will allow time for rational
reflection away from the emotional turmoil, and encourage.
all to disavow violence and mob action.
In this period of extraordinary circumstances I believe the
community colleges would find it wise to encourage similar
endeavors by their faculties and students.
RONALD REAGAN
Governor
cane
STATEMENT BY PRESIDENT HITCH 5-6-70
At the request of Gov. Reagan, the University of California
will be closed from Thurs., May 7, through the weekend, UC President
Charles J. Hitch announced today (Wed., May 6).
Governor Reagan has asked that all college and university
campuses in the state be closed for this period to provide an
opportunity for rational reflection on the current tragedies on
the nation's campuses.
During the four-day shutdown, students are urged wherever
possible to return to their homes. A skeleton force of University
personnel will remain on hand for necessary hospital services,
maintenance and security. In general, the same facilities will
remain open as on a Sunday. The resident halls will be kept open
for those unable to leave. The UC campus will resume normal
operations on Monday.
"The chancellors and I earnestly request all students,
faculty and staff to observe this period of reflection. We very
much need to work and think together how best to help our society
and our nation," President Hitch said.
came
STATEMENT BY PRESIDENT HAYAKAWA:
5-6-70
In accordancd with a directive from Gov. R, S.F. State College,
along with all state colleges and universities, will be closed from
the end of the work today, May 6, until the beginning of the work
day, Monday, May 11, 1970.
The campus will not be available to student or faculty groups
for meetings or any other activities during this period.
Just before 11 this morning, we received word from the
chancellor's office that Gov. R was ordering state college and
univ. campuses closed for these four days. I have since talked
to the Gov. and understand his reasoning.
Too many innocent students are being led down the path of
anarchy. They need time away from the radical rhetoric to think
of their own lives, their families and their country's future.
Four days away from the campus should provide time for contemplation
and serious thought about the consequences of the violence that has
erupted in recent days.
When students return to classes on Monday, I hope they will be
able to distinguish between legitimate dissent and the movement led
by anarchists to use current emotions as a
cheap excuse to
destroy buildings, institutions and lives.
In the last few days, I believe that we at S.F. State College
have proved an important point for the entire nation. We have had
our rallies, speeches and marches. But we have also avoided violence
completely. Why? Primarily because the majority of students and
faculty at S.F. State College are decent, reasonable people. They
recognize that their rights to voice opinions, to attend classes,
and to go about their private business are protected, but that this
college will not tolerate disruption and violence perpetrated by the
few who have no respect for the rights of others.
These rights to freedom of thought and freedom of expression
will continued, as always, to be protected.
# # #
To Fac and Staff:
In accordance with the above statement, the college will be
completedly closed to all faculty and staff employees except for
normal security and required maintenance functions for the period
starting 12:01 a.m. Thursday, May 7, through 11:59 p.m., Sunday,
May 10. Employees will not be disadvantaged pay-wise for their
scheduled duty tours (specific details will be published later).
Staff and faculty are expected to return to their normal work
status, effective Monday, May 11.
P.B.
June
file
/
California pays the nation's highest average salary for
elementary and secondary school teaching personnel.
During the 1968-69 school year, the average annual salary for
California's elementary and secondary school instructional staff was
$9,800 according to figures compiled by the National Education
Association. This is:
-Almost 20% higher than the national average of $8,194 for all the
50 states and the District of Columbia.
--$308 higher than the average salary paid in Michigan, the second-
place state.
$400 higher than the average instructional staff salary in New York,
the third-place state and the only other state with a population
comparable to California's.
The NEA survey also noted that the average annual salary for
elementary and secondary school instructional staff in California
rose 43.2% during the period 1959-60 to 1967-68.
Here are the top five states in average annual salaries for
elementary and secondary school instructional staff:
California
$9.800*
Michigan
9,492
New York
9,400
Illinois
9,300
Massachusetts
9,269
(*The average instructional staff salary for Alaska in 1968-69
is estimated at $10,887. However, the NEA notes that the purchasing
power of $1 in Alaska's four largest cities averages only about 75
cents compared with the average purchasing power of the dollar in the
areas covered by the Consumer Price Index of the U.S. Bureau of Labor
Statistics. For this reason, the NEA says Alaska's figures should be
AND
reduced by about one fourth to make its figures realistically
comparable to those from other states. On that basis, Alaska's
salary scale for 1968-69 is about $8,146 in U.S. dollar purchasing
value, well below the leading states in the continental U.S.)
(Source: Table 8-10 Economic Status of the Teaching Profession,
1968-69, National Education Association)
2 I I
State of California
Education
Memorandum
School Financing
To
Alex Sherriffs
Date : November 22, 1971
Subject Financial Support for
Public Education
From : Jerry Martin
Attached is a revised one-sheet chart showing the increased appropria-
tions for various segments of education during the Reagan Administration.
Please note that operational fund increase for public schools (K-14)
has increased four times faster than total enrollment and total school
subventions have increased a little more than three times faster than
enrollment.
Also, when the State assumes increased Teacher Retirement Fund obliga-
tion next year, these figures will be up substantially and will reflect
a more than half a billion increase of annual State support for K-14
since 1966-67, the last budget year of the prior administration.
The enrollment increase shown for U.C. system was the budget projection.
Actual enrollment this fall indicated this may be down somewhat, provid-
ing a larger spread between the increase in money (40.4%) and the increas
in enrollment.
CC: Ed Meese, Jim Jenkins, Rush Hill, Verne Orr, Jim Dwight, Ken Hall,
James Hall, Ike Livermore, Frank Walton, Earl Coke, Don Livingston,
Bob Keyes, Ned Hutchinson, Ed Gray, Paul Beck, Bill Stroebel,
George Steffes, Herb Ellingwood, Dick Turner, Bruce Nestande
A
GOVERNOR REAGAN'S FINANCIAL SUPPORT FOR PUBLIC EDUCATION
Budget
Budget
% Increase $
% Increase of
Year
Year (Est.)
--Five Years
Enrollment--Five Years
1966-67
1971-72
Direct 'Aid to
Public Schools
UP 44.2%
K-14
$1.049
$1.513.8 1
UP 11.4%
(School Apportion-
Billion
Billion
($464 Million)
ment Fund)
Total School
Subventions K-14
1
UP 35.9%
(Includes text books
$1.232
$1.673
UP 11.4%
Special Funds, etc.)
Billion
Billion
($441 Million)
Junior Colleges
$71.2*
$184.9
UP 159.7%
UP 64.4%
Million
Million
($113.7 Million)
State Colleges
$167.7
$315.8
2
UP 88.3%
UP 69.4%
Million
Million
($148.1 Million)
UC System
$240.1
2
$337
UP 40.4%
UP 33.4%
Million
Million
($96.9 Million)
State Scholarships
$4.7
$20
UP 325.4%
Million
Million
($15.3 Million)
1. This year, the State also agreed to appropriate approximately $135 Million a year, starting in
1972-73, to put State Teachers Retirement Fund on a sound, fiscal basis (AB 543--Barnes). This
increased annual contribution will substantially raise State's contribution to education in future
years. 2. Does not include approximately $39 Million in UC--State college capital outlay (bond
10-27-691 ed wined this
Educ.
to TIME mag in N.Y.
QUESTION: IS YOUR OFFICE INTERESTING IN A POLITICAL WAY WITH THE TRADIT-
IONAL ACADEMIC AND ADMINISTRATIVE INDEPENDENCE THE UNIVERSITY ENJOYS IN SUCH
MATTERS.
ANSWER: "No, and under the Constitution of the State of California, It could
not.
"or course, as governor, I on A member of the university Board of
Regents, along with another 23 citizens of the state. Sixteen are appointed
members who serve 16-year terms, and eight, such as myself, serve in on ox-
officio capacity. When vacancies occur, it 1a the responsibility of the gov-
ernor to appoint successors to the non ex-officio posts.
"During my term in office, I have made only four appointments to the
board. It is very un likely, therefore, that -- even If I wished -- I could
exert political control over board members.
QUESTION: ARE THE REGENTS, AT YOUR URGINO, DIRECTLY OR INDIRECTLY CONSIDER-
INO A PROFESSOR'S POLITICAL LEANINGS PERFORM GRANTING HIM TENUM.
ANSWER: "As D regent, and #: governor, 1 have never urged the adoption of
any sort of 'political test' in the hiring of faculty members. My concern,
however, is that'political tests" co, in fact, exist and 626 being Imposed
by certain members of the faculty on some of our compuses.
"At A recent meeting of the Board of Regents, I voted in favor of
$ resolution which reaffirmed the principle that such tests should have no
place in the running of the university.
"A test to Insure liberalism, or redicalism, 1= surely no better
then $ test to insure conservation. Neither 1s appropriate to & public
institution of higher learning. On the contrary, I believe that #: truly
professional ethic " regardless of personal bies ** should prevail in
every classroom.
2 -
QUESTION: DOES YOUR CRITICISM FROM TIME TO TIME OF 3 TUDENT RADICALS,
PERMISSIVE PROFESSORS AND TAX ADMINISTRATORS TEND 20 PARM THE UNIVERSITY
BY MAKING IT VULNERABLE 70 PUBLIC PRESSURE AND VOTER RESENTMENT, AS YOUR
CRITICS CHARGE.
ANSWER: "If anything Is harming the university, it is that administrators
and professors are ignoring the needa of the students. Their priority
lists are upside down, with students at the bottom. Unfortunately, too
many faculty members and administrators put the preservation of their own
establishment at the top of their priority list, at the expense of the
student -- the very person which education 10 all about. My oritioism
of the university 10 contered around faculty peglect of students. It's
no wonder they're upset.
QUESTION: IS THIS CRITICISM OF THE UNIVERSITY OR ITS UNTERIRABLE COM-
PONENTS AT TRAST A POLITICAL MECHANISM WHICH YOU THINK VILL IRIP YOU IN
THE NEXT STATE HIROTION,
ANSWER: "It 1s the duty of any governor to Insure that the number one
function of the state's public institutions of higher learning is to educate
students. I believe the vest majority of Celifornia citizens would agree
with m. If this is the case, then It is clear that it 10 not the governor
or the Board of Regents who consider-it a 'political mechanism' but rether
certain faculty members who have obosen to insert politics into the classroom.
QUESTION: FINALLY, AND YOU ALTERING BY YOUR ACTIVE CONCERN WITH THE UNIV-
ERSITY A TRADITION OF UNIVERSITY INDEPENDENCE FROM STATE MATTERS. IF so,
THIS HARM THE UNIVERSITY AS YOUR CRITICS CHARGE, OR HELP IT.
educate our young
ANSWER: "My sctivey-infadd-overridingygoncern infadd is that 100
people.
the
and If this insistence on putting the needs : of of students shood of
at the
the 'educational establishment'
inventied Politionl interference, then
S.F. EXAMINER Education writer, at his request (approved by
person---Governor.
Alex Sherriffs, John Kehoe and Ed Meese). Answers are Educ. in first
September 5, 1969
(Copied from TWX)
1. What does the Reagan administration plan to do to help
city schools?
As you know, we presented a comprehensive plan for overhauling
California's outmoded tax structure, including reform of the state's
overburdened and restrictive system of financing local school operations.
The subject has not yet, however, received action in the legislature.
Yet, the fact is that there must be better equalization of
financial support for our public schools if we are to provide equal
educational opportunities for all our children, whether they chance
to live in low-wealth or high wealth districts.
Under the tax reform program which we proposed, the state would
assume most of the basic foundation support for local school districts
by levying a one percent "educational opportunity tax" derived from
sources other than residential property. This would amount to about
80 percent of the residential property tax currently collected by
local school districts. The funds from both the statewide educational
opportunity taxes would permit the state to more than double its share
of school financing- to some $3 billion a year. It would mean that
each pupil in the state would receive from $500 to $725 per year
based on average daily attendance depending on grade level. This
contrasts with a current educational imbalance which makes available
as little as $289 per student in some districts and as much as
$2,662 per pupil in others.
"This is an imbalance which demands change, for I believe the
state has an obligation to make certain that every school child in
California no matter where he happens to live---has an equal
opportunity to realize his maximum potential.
"In connection with our efforts to correct this imbalance, I
have urged congress to consider and adopt legislation which would
allow California residents to claim a one percent credit on their
federal income tax bills to cover whatever additional state income
taxes they might owe as a result of the kind of tax reform program
we proposed for California. In effect, this would offset---indeed
eliminate any net increase in the combined tax bill of any
Californian on passage of our tax reform program and if the tax
credit were granted by the federal government.
"We intend to continue to push for meaningful reform in these
vital areas, including an overhaul in California's structure of
educational finance and implementation of the concept of federal
tax sharing a concept which has received the support of vice
president Spiro Agnew and Senator George Murphy.
"Incidentally, if our tax reform program were adopted, I
would insist that state funds for local school financing be
distributed on a no strings attached basis.
"Finally, let me point out again---as I did on signing the
current state budget las month that education received the
very highest priority for funds of any state agency or department.
In fact, in submitting our budget to the legislature last February,
I broke past precedent and requested $105 million in additional
aid to public schools. To this we were able to add $15 million
due to federal cancellation of the freeze on aid to families
with dependent children. And, to the $120 million, we agreed to
make available for one-time use any unanticipated revenues from
last year's budget.
"Just several days ago I had the pleasure of signing into law
a major bill in our administration's legislative program which will
extend, and promises to improve, California's compensatory education
for elementary school-age youngsters who live in disadvantaged areas.
"I strongly support the principle of dealing with educational
deficiencies at the earliest possible age. If we are to achieve
educational balance, we must support efforts which innovate valid
and meaningful programs from kindergarten through the sixth grade
level.
"The compensatory education bill will give our youngsters who,
through no fault of their own, happen to live in disadvantaged areas,
a better chance for a good start in school."
2. Do you feel that order has been restored on the Berkeley campus
as you promised in your campaign? To what extent? What more should be
done?
"As you know, it has been my desire, and remains my desire, to
see those values which prevailed just a few short years ago on the
Berkeley campus restored.
"As Governor, and as a Regent of the University, I have a unique
responsibility to represent the citizens of our state who are insisting
that the institutions of higher education they so generously support
function effectively and properly in educating their children.
"I also believe that I represent the majority of the people of
the state in defining education as the presentation of the truth
whatever it may be---and not the use of the classroom for propaganda
and indoctrination.
"Academic freedom is a privilege granted by the citizens of our
society to insure that faculty members may pursue the truth wherever
it might lead. But, when a professor no longer prizes this principle,
he betrays a trust we place in him and jeopardizes the academic
freedom of his colleagues as well.
2
"The point is: honesty in teaching in principle and in
practice is of greater importance to us and our youngsters than
the more visible signs of peace or disruption on campus. To be
sure, if all faculty members on campus valued honesty in their
classroom instruction, disruption would cease to be a problem.
"Another concern of both students and their parents is the
practice of faculty neglect of students in too many classrooms.
Campus disruptions have the effect of attracting the curiosity,
and unfortunately sometimes the naive fancy, of too many of our
normal youngsters out of a feeling of genuine frustration a
result of neglect in the classroom.
"The challenge, indeed the very real necessity of correcting
this all too frequent state of affairs, and for paying attention
to the educational experience of students will, in the long run,
be of infinitely greater significance than the order or disorder
of physical facilities.
"This, of course, is not to ignore the fact that in our
society the rights of personal freedom and protection of personal
property must be the rights of all.
"The capture of campus buildings and personnel, and attempts
to silence the opposition, are totalitarian tactics and are of as
much concern to the citizens of California as they are to me.
"We cannot derive much satisfaction from quiet on campus if,
on the same campus, indoctrination replaces integrity, frustration
breeds disorder, and vacillation encourages disruption.
"The fact is, the quiet of summer vacation is not a valid
indicator of some sort of change for the better.
"We know that during the summer many plans have been made for
causing serious disruption on campuses this fall, including Berkeley.
"We will know that order is restored when we see administrators
take courageous action and exert constructive leadership; when we
hear responsible faculty members speak out against their colleagues
who encourage and even participate in disorders; when students no
longer feel they're nameless, faceless numbers on an assembly line and
taught by teaching assistants hardly older than themselves; when
'publish or perish' ceases to overrule teaching as a career; when
professional ethics are restored to the classroom; and when student
members of the responsible, if silent, majority refuse to be taken
in by those few radicals and nonstudent activists who purvey violence
and contempt for the law as a way of life."
3. In the current Life magazine, a San Francisco state faculty member
says, in passing, that California's reputation among educators is
not good. Others have said the same thing. What do you think of
such allegations?
- 3
"For every faculty member who leaves California for whatever
reason to teach elsewhere, there are two waiting in the wings to
take his place.
"Competition in the educational marketplace, combined with
the traditional mobility of those in the profession naturally lend
themselves to such charges by persons who wish to mislead the
public for various reasons.
"However, the allegations they make are often designed to
exploit these two factors for personal aggrandizement.
"The competition for California educators by colleges and
universities around the country is well known. The lure of bonuses
and fringe benefits obviously attracts some California educators
to other states. This happens because of the high reputation of
our institutions. In addition, advancing educational systems
outside of California want to take advantage of the training
gained by young instructors and assistant professors in our
University and state college systems.
"On the other hand, I am not personally aware of any significant
number of Nobel Laureates which California holds proudly having
left the state. Nor am I aware of any recruitment problems for
professors at California institutions of public higher education
other than the problems resulting from a generalyshort supply.
"I do know of instances in which teachers have left our
institutions for another reason, however. They are simply fed
up with the violence and intimidation by radicals on our campuses
and feel compelled to either leave the profession altogether, or
to move to institutions not beset by such problems, campuses
where a peaceful and productive atmosphere prevails. "
4. Do you go along with those who say the California taxpayer is
paying too big an education bill?
"Education is the measure of what we are today and what our
society can and must be in the future. An educated citizenry
is the key to our progress as a state and nation. The extent to
which we continue to constructively build on and improve our
educational system will determine both the quality and preservation
of our way of life as a free people in the years to come.
"If we are spending too much for education, it is only in
the sense that we must continue to find new and better ways of
getting the greatest possible benefit from our investment.
"There is no wiser investment than that for education, but
we must make sure that every taxpayer dollar spent for this purpose
is spent wisely and efficiently for the rightthings.
- 4 -
"I believe these reflect the sentiments of the vast majority
of the people of California who ask only that their money not be
wasted that their long-term investment yield a good return."
5. What do you think should be done to students who go on strike
at state colleges and universities? What of those who break the
law in connection with demonstrations? What of faculty members in
the same two categories?
"If you mean 'students who go on strike' to be those who
choose to boycott class, then they themselves would be the
principal losers. One would presume that they are in school to
learn and benefit from their educational opportunity.
"I suppose that if they are willing to pay the price in
grades and not halt the educational process or infringe on the
rights of others who do wish to take advantage of their opportunities
as students, then there is little to be done. However, I
think
it would be an excellent way of flunking out of school.
"In entrusting their youngsters to faculty members, the
people of California have granted special privileges, including
tenure, to teachers. These privileges carry with them certain
responsibilities and obligations, particularly exemplary behavior
and respect for the laws of the state.
"There is no law in California giving public employees
(teachers) the right to strike. Striking by teachers has been
held to be grounds for dismissal.
"Faculty members who strike not only fail to display exemplary
behavior, they also ignore the public trust and privilege vested
in themby the citizens of the state, who, after all, pay their
salaries. To ignore the law shows contempt for both the institution
and the citizens of California.
"In the case of either students or faculty, I believe law
breakers should be arrested and punished appropriately if proved
guilty.
- 5 -
Given LIA Times mly.
9-17-69
Governor Reagan's office today expressed surprise at
recent criticism of the governor's decision to veto a bill
that would have doubled the cost of the state scholarship program.
"It is interesting to note that in the three years of the
Reagan administration the amount of money made available for
the program has more than doubled," - the governor's office
pointed out.
"In 1967 when Governor Reagan took office, the previous
administration had budgeted a little more than $5 million for
the scholarship program. The Reagan budget for the current
fiscal year allocates nearly $14 million for the scholarship
program.
"Critics have overlooked the fact that there have been
substantial increases in the state scholarship program.
"Budgeted figures show how the Reagan administration has
increased the amount of money available for scholarships:
Fiscal 1966-67 - $5,031,000
Fiscal 1967-68 - $6,453,000
Fiscal 1968-69 - $8,924,000
Fiscal 1969-70 - $13,931,000
State of California
Educ.
Memorandum
(EOP Funds)
To
:
Governor Ronald Reagan
Date : June 27, 1969
Educational Opportunity
Subject:
Programs (E.O.P.)
From :
John T. Kehoe
Educational Consultant
Soon you will be facing a budget from the Legislature which will
contain new funds for E.O.P. Probably no issue is more on the
minds of the under 30 crowd today than the question of providing
the so-called disadvantaged students with an opportunity to have
higher education exposure. The "bleeding hearts" believe that
the attempt must be made to recruit individuals from pool halls,
etc., who have failed to meet basic achievement standards for
admission into higher educational institutions or who have
dropped out of high school altogether.
This is not a State of California idea alone; the concept is
sweeping the country, probably out of tear of having to capit-
ulate under confrontation on the part of some states and some
institutions, and partly an extension of the so-called aggrieved
conscience of our times. In any event, this is an extremely
volatile issue. The Democrats are clearly lying in wait and
hoping that you will reject funding for E.O.P. The Unruh bill,
SB 2115, represents some three years of effort by Dr. Kenneth A.
Martyn who is Vice President for Academic Atfairs at California
State, Los Angeles, a consultant to the Joint Committee on Higher
Education and a close friend of the former speaker. This bill
offers a $16.5 million appropriation and is politically oriented
to attract those interested in seeing the major program at the
junior college level with experimentation in high school tutor-
ing and in allowing immediate opportunities in the state colleges
and universities.
Attached I have put together a briefing commentary for you giv-
ing history, etc. It is my recommendation that you find a way
to endorse the concept of E.O.P. I like the idea of accomplish-
ing this through a modest investment in junior college programs
along the lines of SB 164, but not at the $10 million level of
this bill. Additionally, I feel that the state colleges could
deter some of their enrichment or augmentation programs and
allow this money to be spent on E.O.P. at that level.
Governor Ronald Reagan
- 2 -
June 27, 1969
Thirdly, I believe that the state should encourage voluntary
programs on the part of the socially active students in our
colleges and universities to foster tutorial programs at the
high school level. These programs should be designed to offer
special tutoring to the high school students on oral and written
English, as well as counseling to motivate these students TO con-
tinue their education and strive for the highest level of achieve-
ment.
Fourth, the state colleges, universities, and community colleges
should be urged to collaborate on innovative programs in the
area of E.O.P. and not try to duplicate each other's efforts on
a fenced type of program. It is not only inefficient, it can
be costly.
Fifth, our higher education establishment should be urged to look
for new ways to establish admission standards so that the archaic
method of using intelligence tests, grade averages, etc., have a
compensating feature which would not allow a rigid hurale to be
jumped or to allow for exceptions to be made in admission stan-
dards which provide an injustice to those striving for achieve-
ment and an injustice to those who can't achieve in any case.
Governor Ronald Reagan
- 3 -
June 27, 1969
Briefing Commentary
E.O.P. - Educational Opportunity Programs
BACKGROUND: A prevailing national view among educators stresses
that higher education, particularly public higher education, has
a responsibility to give a chance to so-called "high risk" stu-
dents who lack money, have low standardized admission test scores,
erratic high school records, and an inability to overcome cultural,
geographical, racial, and motivational factors.
The Coordinating Council for Higher Education in 1968 recommended
that the Board of Trustees of the California State Colleges and
the Board of Regents of the University of California adopt
policies doubling their exemption provisions. The Board of Regents
established a program under firm controls to serve 1,948 students
during 1968-69 with expenditures totaling $3,761,000, of which
$821,000 was appropriated from the Regents' Opportunity Fund. One
million dollars came from a special allocation developed through
a University registration fee, paid for by students. The remain-
ing money has come from federal sources, foundation grants, and
private funds. No state revenue is applied to this program.
The Trustees of the California State Colleges have permitted pro-
grams to be established that have been extremely controversial
with poor control and inadequate funding. There has been close
to $1.2 million going into State College E.O.P. programs under
"bootlegged" positions.
STATE OF CALIFORNIA ACTION: In 1968 legislation was signed into
law which permits the State Scholarship and Loan Commission to
establish a pilot program of one thousand $1,100 grants to dis-
advantaged students. This program is currently getting under way.
STATE SCHOLARSHIP AND LOAN COMMISSION: For the coming fiscal
year, this Commission is proposing an expenditure of $14,017,590
for the Scholarship Program, Graduate Fellowship Program, and
Guaranteed Loan Program. One million dollars of this money is for
the College Opportunity Grant Program mentioned above. The esti-
mated expenditures for the present fiscal year for this agency
equals $8,918,621, or a substantial increase proposed for next
year to accommodate more students in the area of financial assis-
tance.
UNIVERSITY OF CALIFORNIA: For undergraduates in the University of
California a total of $10,464,384 has been spent for scholarships
and grants, loans, and college work study. For graduate students,
this figure amounts to $18,545,420, or a total of $29,009,804.
The California State Colleges, in the year 1967-68, has spent
$25,800,000 in financial aid for all students. This includes
state and federal funds and represents the latest data available.
Governor Ronald Reagan
- 4 -
June 27, 1969
SUMMARY: IN SUMMATION, IT SHOULD BE POINTED OUT THAT THE E.O.P.
CONCEPT IT GOOD. IT IS FRAUGHT WITH PROBLEMS AND MUST BE PROPER-
LY STRUCTURED BY THE EDUCATIONAL EXPERTS. A POOR PROGRAM CAN
BECOME A BOON DOGGLE; FINANCIAL AID ALONE IS NOT THE ANSWER. IT
MUST BE A STRUCTURED PROGRAM WITH TUTORIAL PROGRAMS AND COUN-
SELING. A GOOD PROGRAM CAN BECOME BENEFICIAL TO SAVE WHOLE LIVES
WHICH MIGHT OTHERWISE BE WASTED ON WELFARE ROLES AND CRIME.
EDUCATIONAL ESTABLISHMENT MUST BE MOTIVATED TO USE THEIR GENIUS
IN INNOVATING NEW WAYS AND MEANS IN CONSTRUCTING PROGRAMS AND OF
ESTABLISHING ADMISSION STANDARDS.
AS MATTERS NOW STAND, BEFORE THE LEGISLATIVE CONFERENCE COMMITTEE
STARTS WORKING, THE BUDGET CONTAINS NO MONEY FOR E.O.P. FOR THE
UNIVERSITY OF CALIFORNIA OR FOR THE JUNIOR COLLEGE SYSTEM. THE
UNIVERSITY OF CALIFORNIA BUDGET DOES HAVE A $600,000 ITEM FOR
URBAN RESEARCH AND PUBLIC SERVICE PROJECTS AND A CATEGORY KNOWN
AS URBAN CRISIS, BUT THIS DOES NOT RELATE TO E.O.P. THE ASSEMBLY
BUDGET CONTAINED A FORMULA FOR APPROPRIATING $2,350,000 TO THE
STATE COLLEGE TRUSTEES AFTER DELETING AUGMENTATION ITEMS FROM
THE BUDGET. ITEM 116.5 HAS SOME GOOD CONTROL LANGUAGE AND PRO-
VIDES NO ADDITIONAL APPROPRIATION ABOVE YOUR BUDGET CEILING.
CC: Ed Meese
Mike Deaver
Paul Beck
Alex Sherriffs
Russ Walton
Bob Keyes
Sal Espana
Herb Ellingwood
JTK:gt