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ABSTRACT

/g LEGISLATIVE VIEW OF THE PUBLIC SERVICE FUNCTION

OF STATE-SUPPORTED UNIVERSITIES/

BY

Marylee Davis

A descriptive study was conducted to determine
how state legislators in Michigan view the public service
function of state-supported universities. The research
sample was randomly selected and consisted of at least
30 percent of the membership of the legislative committees
that work directly with higher education legislation. The
legislative committees sampled include: House Appropria-
tions Committee, Senate Appropriations Committee, House
Education Committee, Senate Education Committee, and
House Committee on Colleges and Universities.

A Legis1ative_guestionnaire, the research instru—
ment, was designed by the researcher and administered to
each legislator via a personal interview in June 1973.

The questionnaire included items about instruction, re-
search, and public service--the three traditional functions
of higher education.

Legislative responses were tabulated by number
and percentage. The data were reported according to
legislative house, committee assignment, political party,

and length of legislative service.

*; Marylee Davis

A composite public service score was determined
for each legislator. This score was based on the re-
sponses given during the interview and indicated the
degree of verbalized support for public service.

As a result of the findings, the following major
conclusions were reached concerning the attitude of legis-
lators who served on the education and apprOpriations

committees in Michigan:

1. The public service function of universities

is an apprOpriate function of state-supported universities.

2. Universities should increase the amount of

time spent on university-sponsored public services.

3. Universities should expand their public

service responsibilities.

4. Many university-sponsored public services
should be provided in the local communities as Opposed to

being located on the university campuses.

5. Supplementary state and local funding should
be made available to universities that increase the number

of significant public service activities offered.

6. Universities should take an active role in

helping America to solve her social and economic problems.

Marylee Davis

7. An appropriate extension Of the public service
function of universities is tO provide the Opportunity for

life-long education.

8. A public service Option should be incorporated
into the university procedures for faculty promotion,

assessment and professional advancement.

A LEGISLATIVE VIEW OF THE PUBLIC SERVICE FUNCTION

OF STATE-SUPPORTED UNIVERSITIES

BY

Marylee Davis

A DISSERTATION

Submitted to
Michigan State University
in partial fulfillment Of the requirements
for the degree Of

DOCTOR OF PHILOSOPHY

Department of Administration and Higher Education
College Of Education

1974

COpyright by
Marylee Davis
1974

This dissertation is dedicated to
my parents

Harold and Lydia Lee

for their continuing love, support,
and understanding.

ii

Personal Data

Education

 

Significant
Legislative-
Related
EXQeriences

 

VITA

Born in Tennessee in a political family--
Grandfather was a state legislator and
father was Chairman of the First Con-
gressional District of Tennessee.

Attended Furman University in Greenville,
South Carolina and East Tennessee State
University in Johnson City, Tennessee.

Bachelor of Science in Education from the
University Of Tennessee, Knoxville, area
Of concentration: Social Science.

Master of Science in Education from the
University Of Tennessee, Knoxville,
Major: College Student Personnel:
Cognate: Sociology, 1970.

Doctor Of Philosophy, Department Of Higher
Education Administration at Michigan State
University, Major: College Student
Personnel Administration: Cognate:
Psychology, 1974.

Con ressional Staff Assistant in Washington,
D. . summer 6?;1971. Worked primarily with
Higfier education legislation and drug abuse
in the military and on campus.

Internship with the Executive Vice-President
and Secretary to theifioard OfCTEustees at
Michigan State University, I975. At MSU,
this person functions as the Official
liaison between the university and the
legislature.

 

Attended springl973 Michigan House Appro-
péiations Committee hearings upon invitation
O the chairman Offithe committee and heard
presentations from MSU, University Of

 

iii

Practicums
and
Internships

 

Judicial
Experience

 

Teachin
Experience

Agditional
Professional
Experiences

Michigan, Western Michigan, Wayne State
University, Oakland University and other
state-supported universities.

Practicum in counseling University of
Tennessee and Fulton High School in
Knoxville.

Practicum in the Office Of the Dean of
Women, University of Tennessee.

Doctoral internship in the Office of the
Vice-Chancellor for Student Affairs,
University Of Tennessee.

Doctoral internship in the M.S.U. Office
of Volunteer Programs.

Doctoral internship in the Office Of the
Executive Vice-President & Secretary Of
the Board of Trustees at Michigan State
University.

Student Discipline Specialist (First in
history Of UT-K.)

Student-Faculty Discipline Committee Member--
UT-K.

Judicial Advisory Board, Chairperson, UT-K.
Judicial Reform (1969-70) worked actively
with Dean Of Students, UT-K.

Student Protest and the Law--attended con-
ference at Univ. Of Georgia as representa-
tive Of UT-K. Summer Of 1970.

Graduate Assistant to Director Of Judicial
Programs MSU 1970-71.

Chief Justice Owen Graduate Center, MSU,
1970-1971.

KingSport City Schools--James Madison
School, KingSport, Tennessee

Resident Assistant and Assistant Head
Resident UT-K 1969-70.

Head Advisor, Michigan State University,
1971-1972.

Associate Director, Owen Graduate Center,
MSU, 1972-74.

iv

Activities
and
Interests

Honors

Membership in
ProfessionaIw
Organizations

Academic Affairs Committee Of the U.T.
Student Government Association; Kappa
Delta Sorority; MSU Steering Committee

on Women; Agenda Coordinator and Chair-
person Of the Student Concerns sub-
committee; Committee Volunteers for Inter-
national Programs Advisor, Lansing,
Michigan: Girl Scout Advisor--Wing Scout
TrOOp Of high school young women (four
years), member Tri-State Pilot's Club
(Tenn.); Officer in county political
organization 3 years (Tenn.). Inter-
national travel includes: Two trips to
Europe, Africa, South America, and the
Bahamas: Observer/appreciator and partici-
pant in music and drama.

Dean's List, "Dean's Award for Outstand-

ing ScHoIarship" Tennessee University;
Magna Cum Laude graduate from U.T.;

Listed in Outstandin Youn Women of
America, 1970. Pfii DeIta Kappa,

Professional Education Fraternity.

 

American Association for Higher Education
American College Personnel Association
American Personnel and Guidance Association
National Association for Women Deans,
Administrators, and Counselors

NAWDAC Committee of Research and Current
Issues (1972-74).

ACKNOWLEDGEMENTS

The author is deeply grateful for having had the
Opportunity to attend Michigan State University to study
with Dr. Laurine E. Fitzgerald, my advisor, committee
chairperson, and professional role model whose advice,
inspiration, and direction have proven invaluable through-
out my doctoral studies.

Mr. Jack Breslin, Executive Vice-President of
Michigan State University and dissertation committee
member, deserves a great deal of thanks for his multiple
roles in making this research a reality. From the day
that he agreed to my becoming an administrative intern,
throughout the internship and the completion Of this
legislative study, his continual COOperation, encourage-
ment, and time has been deeply appreciated.

The author is most appreciative of the following
Guidance Committee members for their contributions and
association throughout the doctoral program:

Dr. Eldon Nonnamaker
Dr. Marvin Grandstaff
Dr. Dozier Thornton

vi

A special note of gratitude is reserved for the
late Dr. Travis Hawk, professor Of Educational Psychology
at the University Of Tennessee, Knoxville. It was
Dr. Hawk who first encouraged the author to earn a Ph.D.

Most importantly, the writer is extremely thank-
ful for the time and OOOperation extended by the members
Of the Michigan apprOpriations and education committees
in the sample and the two legislators who participated in
the pilot study.

Finally, recognition must be extended to Mimo for
his support, understanding, and friendship . . . this

friendship shall be cherished throughout my lifetime.

vii

LIST OF

Chapter

TABLE OF CONTENTS

TABLES O O O O O O O O O O O I O I O

I C THE PROBLEM O O O O O O O O O O O O 0

Introduction . . . . . . .
Purpose Of the Study . . .
Statement Of the Problem .
Definition Of Terms . . .
Importance Of the Study .
Limitations Of the Study .
Organization of the Study

II. REVIEW OF LITERATURE . . . . . . . . .

Introduction . . . . . . . . . . . .
Public Service as a Function Of
Higher Education . . . . . . . . . .
The Role Of Public Service in
Universities . . . . . . . .

A Brief History Of University Public
Service . . . . .-. . . . . . . . .
Current Issues in University Public
Service . . . . . . . .5. . . . . .
The University and Society . . . . .
The University and the State
Government . . . . . . . . . . . .
Legislative Educational Studies . .
Summary . . . . .-. .p. . . . . . .

III. DESIGN AND METHODOLOGY . . . . . . . .

Introduction . . . . . . .
The Research Population .
Sampling Procedures . . .
The Research Instrument .
Data Collection Procedures . . . . .

viii

xi

I-‘kOxlO‘nwa l-‘

l-‘

12
14
17
21

31
33

38
43
49

51

51
51
52
53
54

The Interview Method . .
The Interview Schedule .
Data Analysis Procedures . . . . . . . .
Summary . . . . . . . . . . . . . . . .

IV. REPORT AND ANALYSIS OF THE DATA . . . . . .

Introduction . . . . . . . . . . . . . . .
Appropriateness Of Public Service . . .
Increased Priority for Public Service .
Expansion of Public Service . . . . . . .
The University as a Model for America .
Life-Long Education as a Public Service .
Location Of Public Service--Campus

or Community? . . . . . . . . . . . . . .
Public Service as Option for Faculty . . .
The Relationship Between University
Public Service Activities and State
Funding . . . . . . . . . . . . . . . . .
Legislative Scores on Public

Service Items . . . . . . . . . . . . .
Appropriateness of the Three

Traditional Functions of Higher

Education . . . . . . . . . . . . . . . .
Summary . . . . . . . . . . . . . . . . .

V. SUMMARY, CONCLUSIONS, IMPLICATIONS
AND RECOMMENDATIONS . . . . . . . . . . . .

Summary . . . . . . . . . . . . . . . .
Conclusions . . . . . . . . . .
Implications Of the Study . . . . . . .
Recommendations for Future Research . .

FOOTNOTES 0 o o o o o o o o I o o o o o o o o o o o

APPENDICES O O O O O O 0 O O O O O O O O O O O O 0
APPENDIX A: The Legislative Question-
naire and other Material Presented tO
Legislators by the Researcher . . . . . .
APPENDIX B: Legislative ReSponses to the

Twenty Items on Part One Of the Legislative
Questionnaire . . . . . . . . . . . . . .

ix

56
57
59
60

62
62
63
65
69
72
75
77
79
81
85
92
109
111
111
114
118
120
123

130

130

138

APPENDIX C: Composition Of the Sample
by Political Party, Committee Assign-
ment, and Length of Legislative Service . 148

APPENDIX D: Categorization Of Items
in Part One Of the Questionnaire . . . . . 151

APPENDIX E: Calculation Of the
Reliability FaCtor I O O C O O O O O O O O 153

APPENDIX F: Voting Records on Senate

Higher Education ApprOpriations Bills

for Legislators in Sample for 1970, 1971,

1972 and 1973 . . . .5. . . . . . . . . . 155

BIBLIOGRAPHY O O O O O O O O O O O O O O O O O O O 158

Table

l.

10.

11.

12.

13.

14.

15.

LIST OF TABLES

IMPORTANT DATES IN THE DEVELOPMENT OF
PUBLIC SERVICE IN AMERICAN UNIVERSITIES . .

RESPONSES TO QUESTION 4 . . . . . . . . . .
RESPONSES TO QUESTION 6 . . . . . . . . . .
RESPONSES TO QUESTION 13 . . . . . . . . .
RESPONSES TO QUESTION 10 . . . . . . . . .
RESPONSES TO QUESTION 14 . . . . . . . . .
RESPONSES TO QUESTION 15 . . . . . . . . .
RESPONSES TO QUESTION 18 . . . . . . .‘. .
RESPONSES TO QUESTION 16 . . . . . . . . .
POINTS SCORED ON PUBLIC SERVICE ITEMS . . .

DISTRIBUTION OF COMPOSITE PUBLIC
SERVICE SCORES BY DIFFERENT FACTORS . . . .

DISTRIBUTION OF COMPOSITE PUBLIC
SERVICE SCORES ACCORDING TO POLITICAL PARTY

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES ACCORDING TO LEGISLATIVE COMMITTEE .

POLITICAL PARTY AND COMMITTEE ASSIGNMENT
OF LEGISLATORS IN EACH COMPOSITE PUBLIC
SERVICE SCORE CATEGORY . . . . . . . . . .

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES ACCORDING TO LEGISLATIVE HOUSE . . .

xi

Page

23
63
66
69
73
75
78
79
82
86

87

89

89

90

90

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES ACCORDING TO LENGTH OF LEGISLATIVE
SERVICE 0 O C . O O O C C C O O C I C O O O 9 l

LEGISLATIVE RESPONSES TO THE QUESTION:

"Higher education serves many purposes--
instruction, research and public service.

DO you have any preferences regarding

these functions?". . . . . . . . . . . . . . 93

LEGISLATIVE RESPONSES BY COMMITTEE TO THE

19.

20.

21.

22.

23.

QUESTION:
"DO you have any preferences regarding
these functions?" . . . . . . . . . .

LEGISLATIVE RESPONSES TO THE QUESTION:
"Is each function appropriate?" . . .

LEGISLATIVE RESPONSES TO THE QUESTION:
"Are some functions neglected?" . . .

LEGISLATIVE RESPONSES TO THE QUESTION:
"What changes, if any, do you see
regarding the priority that will be
given to each function in the future?"

RESPONSES ACCORDING TO LENGTH OF
LEGISLATIVE SERVICE:

"What changes, if any, do you see
regarding the priority that will be
given to each function in the future?"

LEGISLATIVE RESPONSES TO THE QUESTION:

"DO you feel that these changes
are desirable?" . . . . . . . . . . .

xii

97

98

100

104

108

109

CHAPTER I

THE PROBLEM

Introduction

 

The politics Of education, although recognized as
an area Of increasing importance to both educators and
political scientists, has inSpired relatively few signifi-
cant studies Of legislative educational issues. Educators
generally have regarded the study Of the political process

1 Political

relevant to educational policy as a taboo.
scientists likewise have not agressively pursued the study
of the politics surrounding education. For example,
Ferguson in his study Of state legislators, described how
the tOpic Of school needs evolved. The decision to use
education as the discussion tOpic developed in an attempt
to select an area that legislators would agree was a
salient issue. The chosen tOpic was not the result Of
the researchers having "any particular interest in educa-
tional research."2
Although in 1965 GOldhammer stated that "political
scientists . . . suddenly discovered political science,"3

a survey Of the literature reveals only a few legislative

l

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.44

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studies that ask questions which address the issue of
public service in higher education. The present study
was designed specifically to determine the attitude of
state legislators toward the role Of university public
service.
The absence Of a significant amount of research
in the area Of the legislature and the state-supported
universities creates a serious void in the understanding
Of university administration. Both the legislature and
the state-supported universities share similar service
functions within the state. Legislators, as elected
Officials, are held accountable by the general public for
decisions related to the efficiency and effectiveness Of
the services which are provided for the citizens within
the state. Legislators must also determine in which areas
appropriations should be made and just how many tax dollars
to allocate to each area. The struggles, battles, and
compromises involved in determining priorities for legis-
lation is called a "transitory truce."4 University admin-
istrators who lobby for better higher educational legis-
lation must have a keen understanding Of the legislative
process and Of their role in the "transitory truce" process.
In Michigan, as early as 1896, state-supported
universities were designated as the fourth branch Of govern-

ment.5 Both the legislature and the state-supported

universities derive their power from the constitution.
The state universities are also considered to be an arm

of state government.6

As an arm Of the state government,
the state-supported universities must determine the manner
in which they will serve the citizens Of the state. It is
important that the universities have an awareness Of how
legislators view the university public service responsi-

bility as each university defines the role Of public service

within its institution.

Purpose Of the Study /

The purpose Of this study is tO ascertain how legis-

I
“ s.

lative educational leaders in the Michigan House thRepre-
sentatives and the Michigan Senate perceive the public
service role of state-supported universities. Research data
should provide information on the attitudes of legislators

in the following areas:

1. Is the public service function Of universities

appropriate?

2. What priority should universities give to the
public service function when compared with

university instruction and research?

3. Should universities increase the services

provided for citizens within the state?

4. Can certain university-Sponsored public
services more apprOpriately be located
Off-campus, i.e. in the community the service

is designed to benefit?

5. How should university-Sponsored public

services be financed?

6. Should the university assume the responsibility
for leadership in solving social and economic

problems?

7. Is the community service function an apprOpriate

rationale for life-long education?

Statement Of the Problem

In the early 1970's, in the midst of increasing
pressures and turmoil, the American university began a
transitional period in order to respond tO the rapidly
changing needs Of society.7 The need for university in-
volvement in providing solutions to America's social and
economic problems was especially felt in the areas Of trans-
portation systems, race relations, pollution control, and
more recently the energy crisis.

The three traditional functions of American higher
education are instruction, research, and public service.
The public service function was develOped in the United

States and makes the American university distinctive.

State legislators also have a public service
function. Each legislator must make decisions which pro-
vide services, including higher education, for the citizens
of the state. Legislators, as the elected representatives
Of the people within the state, should be in a position to
speak personally and for their constituents concerning
their perceptions of the appropriate role of the university
in public service.

State legislators should be able to provide infor-
mation concerning the degree of public service involvement
considered desirable for a university. For example, is
consultation adequate or insufficient? Is the administra-
tion Of a facility or service apprOpriate or is such direct
service inappropriate? Also, who is the public--does the
university stop at the state line? Always?

The value of knowing how legislators who work on
the committees directly related to higher education view
the public service responsibility cannot be over—emphasized.
Such knowledge is necessary for the university in making
sound decisions within the university and for both the
legislature and the university in working more harmoniously
with each other in terms Of long-range planning for public
service and for the supporting appropriations. This study

will attempt to analyze legislative reSponses in the area

of public service to be Of utmost usage to university

administrators and legislators alike.
Definition Of Terms
In order to insure maximum clarity, the following

critical terms are defined as used in this study:

Functions of Higher Education--"Activities Of the
university or higher educational system that are function-

ally related tO other social systems."8

Instruction--the transmission Of knowledge. Activi-

 

ties included are those which relate to the preparation and
presentation Of classroom lectures, discussion groups, and

academic advising.

Legislative Educational Leaders--those members Of
the Michigan legislature who currently serve on one or more
Of the following legislative committees: House ApprOpria-
tions, House Colleges and Universities, House Education,

Senate Appropriations, and Senate Education.

Public Service--the application Of knowledge.
Activities which are designed primarily to benefit the
greater society. Both departmental (faculty) public service
activities--such as: consultation, urban counseling, agri-

cultural extension, etc., and institutional public service--

such as: radio broadcasting, alumni relations, university

publications and continuing education are included.

Research--the search for new knowledge. Included
are activities, both laboratory and non-laboratory, which
relate to a research project, i.e. research design, experi—

mentation, and write-up.

State-Supported Universities--the four year degree
granting universities which depend primarily on state
appropriations for their Operating funds. Excluded are

state colleges and all other post-secondary institutions.

Traditional Functions Of American Higher Edggg-

tion--instruction, research, and public service.

Importance of the Study_

This study is important for several reasons. It
is a timely study. During the 1970 legislative session,
the Michigan legislature established minimum per week
student contact hour requirements for faculty in the state-
supported institutions Of post-secondary education. For
example, Section 12 of #83 ApprOpriation for Higher Educa-
tion states that faculty members at graduate institutions
are required to have a minimum Of ten contact hours per

9

week with students. If the decision to establish such

IO

11

F“

faculty guidelines was the result Of legislative mis-
understanding or disapproval Of faculty involvement in
public service, then such attitudes should be revealed
through the personal interview in this study. This study
is also timely because educators during the early 1970's,
have been studying the concept Of life—long learning.10
Information regarding how legislators view the public
service function Of state-supported universities will add
an important perspective to the already existing literature
on life-long learning.

Secondly, one Of the most important aspects Of
this research is to determine whether or not state legis-
lators see the public service function, as it is presently
being performed, as being consistent with their perception
Of an apprOpriate function Of the university.

Thirdly, the results Of this study should enable
university administrators to plan more realistically in the
area of public service and community development. Infor—
mation about the Opinions Of legislators should serve as a
key to more apprOpriate decision-making in several areas.
Knowledge of the position Of legislators toward public
service is Of tremendous importance not only in the more
Obvious area of university-sponsored community service, but
such information may also assist the universities in the

staffing and administration Of public service projects.

For example, should university-sponsored public service
projects be staffed solely by professionals or should such
projects exist tO aid in the education Of students and
should the university or the community administer the
public service activity?

Finally, state-supported universities are continually
interested in improving their public image. It is Obvious
that everything that will promote better public relations
between the legislature, the taxpayers, and the university
will be welcomed by university administrators and legis-
lators alike. By interviewing state legislators, an indi-
cation Of public knowledge Of and support for university-

sponsored public service will be Obtained.

Limitations Of the Study

The study will be confined to legislators who are
educational leaders as determined by their assignment to
the various education or appropriations committees Of the
Michigan House Of Representatives and the Michigan Senate.
It is recognized by the researcher that it is quite possible
that certain legislators who are regarded as educational
leaders by their legislative colleagues do not presently
serve on an educational committee or an appropriations
committee and lacking such formal appointments are not in-

cluded in the population Of this study.

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All questions asked will refer to the incorporated
four-year state-supported universities within the state of
Michigan. All other post-secondary institutions will be
excluded from this study. It must be recognized that this
study is not designed tO determine the prOper role Of the
legislature in controlling and influencing the university,
but rather to determine the attitude of educational leaders
within the legislature toward the role of the university in
public service.

The study will be limited to a great extent by the
ease with which the legislators are able to answer the
questions as completely and Openly as possible. Each legis-
lator will be informed both in the initial letter of intro-
duction and at the outset Of the interview of the procedures
which would be used to guarantee anonymity. Although every
effort to assure complete anonymity will be made by the
researcher, some legislators might be reluctant to completely
express their feelings on some Of the more controversial
aspects Of the discussion.

Finally, a major limitation Of the study lies in
the difficulty with which one can compare a legislator's
political performance in the area Of public service with

his or her responses in the interview.

11

Organization of the Study

This dissertation has five chapters which are

organized according to the following plan:

Chapter I includes an introduction, statement of
the problem, the purpose Of the study, the importance Of
the study, a definition Of terms, the limitations of the

study, and the organization Of the study.

Chapter II contains a brief description Of the
historical development Of university public service and a

review Of the literature related to this study.

Chapter III describes the design and the methodology
Of the study. A description Of the research pOpulation, the
sampling procedures, the research instrument, the method Of
data collection, and the procedure for analyzing the data

are included in this chapter.

Chapter IV contains an analysis Of the data in

both tabular and explanatory form.

Chapter V provides a summary of the study with
final conclusions, implications and recommendations for

further research.

CHAPTER II

REVIEW OF LITERATURE

Introduction

 

Unfortunately, a survey Of the literature provided
little insight regarding how state legislators view the
public service function Of state-supported universities.

As a matter Of fact, only a few books have been
written about how legislators view the state-supported
universities. The American tradition Of public service,
however, is revealed throughout the literature and thus
establishes the uniqueness of the American state university.

According to Perkins,:it was after the Morrill Land
Grant Act Of 1862 that the dream Of Franklin and Jefferson
for universities to apply knowledge to the world and to
serve the nation was first accomplished.11 Since that
time, America has witnessed an expansion Of the public
service function of universities. Not only can one find
agricultural extension centers and home demonstration
centers Sponsored by universities, but some universities
are beginning tO expand the public service concept to in-
clude continuing education divisions and urban development

12

13

programs. The history Of the eXpansion of the public
service concept is a history Of the.American university
today.

For the purpose Of this study, the literature
which was selected for review in this chapter is reported

under the following divisions:

1. Public Service as a Function Of Higher

Education

2. The Role Of Public Service in the State-

Supported Universities
3. A Brief History Of University Public Service
4. Current Issues in University Public Service
5. The University and Society
6. The University and the State Government
7. Legislative Educational Studies

The order Of presentation begins with an explanation
Of the public service function as it compares with the in-
struction and research functions and ends with a review Of
the legislative educational studies considered most relevant

to this study.

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14

Public Service as a Function
of Higfier Education

 

The American university as an institution has had
three primary educational functions: instruction, research,

and public service.12

Perkins describes the relationships

between the three aspects Of knowledge and the three missions
Of the university in the following manner: "The acquisition
of knowledge is the mission Of research; the transmission Of
knowledge is the mission Of teaching; and the application Of

13 Perkins warns

knowledge is the mission Of public service."
that the integrity of the university involves the resistance
to over-eXpansion Of any Of the three traditional institu-
tional purposes. A part Of this institutional integrity is

the requirement that each institution select and develOp its

own unique specialization.l4 As stated in The Capitol and

 

the Campus, state-wide planning for post-secondary education

 

involves the determination and allocation Of "apprOpriate
functions for the various types Of institutions within post-
secondary education, including degrees to be granted,
research activities, and public service functions."15

Ewald Nyquist further contends that, "postsecondary
institutions should increase their capacity and willingness
to be change agents in our society. . . . Their [the

universities] functions Of service, teaching and research

are all closely tied to the concept of accountability to

15

society."16 In order to effectively plan university
public service activities which involve accountability

to society, one must first establish a basic understanding
Of what is meant by the public service mission Of a uni-
versity.

University public service has no universally ac-
cepted definition. When discussing the three traditional
functions Of a university, educators Often seem to elaborate
on the Specifics Of instruction and research with the im-
plication that everything not included in their definitions
Of instruction and research should be classified as public
service. Such an inference about public service activities
could be quite misleading! Webster, 1967, describes public
service as the granting Of a commodity or service to various
members Of the community.

Donald Kline in discussing the history Of the public
service function Of universities, provides his interpreta-
tion Of public service:

Moreover, the Congress established the third

basic mission of higher education by eXpressing

the desire that the intellectually based eXpertise
in higher education be used to solve problems being
brought about by a rapidly expanding agricultural
and industrial society. Thus, the idea that a
college or university should engage in service Of
the application Of knowledge to the solution of
societal problems was established.17

Public service has been defined by Miller as

"working with community groups, serving on statewide or

16

national committees, and working with poverty groups
. . ."18 Miller also states that in order for public
service to count as a professional activity, the activity
should relate to one‘s profession.19
Although Perkins believes that, "everyone owes a
part Of his life to his society for public service, whether
or not this service is directly connected with his pro-
fession," he also argues that for an outside activity to
qualify as a legitimate university public service activity,
it must relate to the research interests Of the professor
and to his or her classroom instruction responsibilities.20
Public service has also been defined as a part Of
instruction. According to Ashworth:
The public service aSpect Of instruction relates
tO issues . . . such as the increasing audience
reached through extended educational Opportunity,
the quality and nature Of education necessary for
the specialists required in our society, and the
Iconcern for providing all graduates with general
fleducation required to maintain a free society de-
‘VOted to the betterment Of all mankind.21
Kerr in Uses of the University, suggests that ex-
tension work is actually becoming "life-long learning."
He also states that, "the campus and society are under-
going a somewhat reluctant and cautious merger . . ."22
If this is true, can it be concluded that life-long learn-

ing will become a societal goal as well as a university

goal? Acceptance Of this mutual goal could redirect the

i

17

thinking Of the nation's educators concerning the role
Of the university.

The role Of public service in universities will
be explored in the following section.

The Role of Public Service
in Universities

As would be expected, each individual university
must determine its own unique position regarding the role
Of public service within its institution. This section
attempts to provide an understanding of the general direction
in which university public service should move.

James Perkins in The University in Transition dis-
cusses the function Of the modern university in public

service. He maintains that, historically "the idea that

.tl/a university should be useful required a society that would

23 0 U I I O
" Th1s movement Of un1vers1t1es 1ntO new

put it to use.
fields of reSponsibility involving the application Of
knowledge in such areas as community service and urban de-
velopment, as well as rural and agricultural extension,
shows the rapid expansion Of the public service function
on campuses today.24
The land-grant institutions met in 1955 to discuss

their role in public service. The Role Of the State

 

Supported University in Continuing Education was the tOpic

‘1

18

Of the Centennial Symposium at the Kellogg Center for
Continuing Education in East Lansing, Michigan. Addresses
were presented by James C. Worthy, Mark Starr, J. L. Morrill
and Henry Steel Commager. The primary discussion centered
around the land-grant institution in a modern day.

Mark Starr, Educational Director Of the Inter-

national Ladies Garment Workers' Union (American Federation

(of Labor) emphasized the fact that citizenship training

I

:and understanding Of social institutions was a part Of the

/
\m

‘early land-grant institutions.

.
a

I)

31

25

During the same conference J. L. Morrill, President
Of the University Of Minnesota, reaffirmed the position Of
the land-grant philOSOphy. "The Land-Grant College was

committed to the education Of citizens better fitted 'tO

”ifmanage their Own affairs' and better able, thereby to manage

the affairs Of the nation."26

Certain limitations are suggested by Ashworth as
he defines and defends the role Of public service. "Uni-
versity involvement in public service which grows out of

its teaching and research functions and feeds back into

othem can strengthen, not harm, the university's unique

position in and contribution tO society."27

In dealing with long-term public service commit-

ments, Ashworth again suggests that the major question that

should
33‘. of
it fee:
resgon:
with A:

activi

19

should be asked is: "Does the program or project grow
out of on-going teaching and research functions and does

28 An affirmative

it feed back into and support them?"
reSponse to the question shows that a project is consistent
with Ashworth's definition Of an appropriate public service
activity.
The role of university public service, as defined
by Ashworth seems compatible with the definition Of "General
Education" which the 1947 President's Commission on Higher
Education develOped. The Commission stated that:
General education undertakes to redefine
liberal education in terms Of life's problems
as men face them, to give it human orientation
and social direction, to invest it with content
that is directly relevant to the demands Of
contemporary society. General education is
liberal education with its matter and method
7 shifted from its original aristocratic intent
H‘to the service Of democracy.29
A controversial area related to the role Of university
public service centers around the appropriateness of research
application. Perkins sees the relationship between instruc-
tion and public service as analogous to the connection be-
tween though and action or between theory and results.30
At the same time, Perkins points out the difference between
giving advice and providing the assistance in completing a
project. He reminds the reader that although an engineer is
‘g {the designer Of a bridge, he is not involved in the actual

1

construction Of the bridge.

20

It has been further established that certain
individuals are fearful that as research has been expanded
from basic to applied and further extended from applied
research to application itself, the university has for-
gotten its original mission. Kerr feels that this caution-
ary measure is ungrounded. He further maintains that Often
new knowledge is discovered at the borders Of basic and
applied research and at the borders of applied knowledge
and application.31

It is interesting to note that applied research has
been defined by one writer as "the application Of new

32

knowledge to the solution Of societal problems." This

definition of applied research is similar to the definition
Perkins gives for public service.33
The apprOpriate degree Of involvement in research
application is not the only controversial point regarding
the role Of university public service. There is also a
concern for where public service activities can best be
performed. Dr. Earl Klapstein in "Continuing Education
and Community Service Programs" suggests that much tOO
Often whenever community services have been Offered, they
are provided on an invitational basis for those who need
a service to come to the campus to receive the service.34

He advocates Offering more services in the communities

where the problems are located.

21

In order to more adequately describe the role Of
the university in public service, the next section provides
an historical perspective Of the public service function of
universities.

A Brief History of

University‘PuBlic
Service

 

The public service function Of universities has a
rich and colorful history--not dissimilar to the develOpment
Of the American university itself. In many ways the kind Of
determination and pioneer Spirit which history portrays of
the early leaders in America mirrows the dynamic spirit Of
the American state university.

The historical develOpment of the public service
function Of state-supported universities will be reported

in the following manner:

1. First, a brief chronological summary is

presented.

2. Secondly, a summary Of three important books
on the history Of the American university is

provided.

3. Thirdly, a critique Of the 1871 Convention

Of Friends Of Agricultural Education is given.

22

The following events establish an historical per-
spective Of the public service function of universities.
(See Table l.)

The first book to be reviewed, The On-Going State
University by James Lewis Morrill, addresses itself im-
mediately to the importance of the land—grant concept in
the develOpment of the American university. "The land-
grant tradition . . . has more than any other influence
shaped the pattern of higher education in America today."35
He continues, "the land-grant philosophy has been America's
most fundamental contribution to higher education."36

Morrill describes the American university as the
product Of three influences--British, German, and the American
state university. He maintains that other than the British
influence Of the liberal arts professions and the pre-World
War I German influence Of research, seminars, and laboratory
science, the state university has been the greatest influ—
ence--"e3pecially the land-grant state university."37

Morrill discusses the concept Of knowledge for use
and the idea that a state university should be accessible
to all the people. "Each Of the land-grant state universi-
ties is committed tO the belief that its true campus covers

"38

the entire state it serves. Be he reminds the reader

that knowledge does not stOp at state lines.

23

TABLE 1

IMPORTANT DATES IN THE DEVELOPMENT OF PUBLIC
SERVICE IN AMERICAN UNIVERSITIES

r t ‘1 1
r I :~

1785
University Of Georgia founded as the first state university.

1787
Birthday Of the state university movement in America,
July 23rd.39
1802
Establishment of West Point Academy.

1855
Governor Of Michigan signs bill creating the nation's first
agricultural college.
1857
Dedication Of the Michigan Agriculture College by its
first president, Joseph R. Williams.
1862

Morrill Act; which set aside 17 million acres for land-
grant institutions whose teaching would include
agriculture and mechanical arts.

1887

Hatch Act; which furnished funds for agricultural extension
stations and experimental work. This act provided
the first federal support for research.

1890

Morrill College Endowment Act; this additional endowment
provided for COOperative extension and guaranteed
that blacks would benefit from the endowment.
(This was a separate, but equal, clause.)

1914

Smith-Lever Act; provided aid for home economics and agri-
culture instruction tO persons not attending or
in residence at colleges. This act was developed

24

TABLE 1 Continued

 

in cooperation with the U.S. Department Of Agri-
culture and it was at this time that COOperative
extension was given national recognition.
1916
National Defense Act; established military training in
civilian schools and land-grant colleges.
1917
Smith-Hughes Act; provided for high schOOl teacher
preparation in agriculture and home economics
and established aid for vocational education.
1925
Purnell Act: established monies for research studies
relating to the rural home.
1935
Bankhead-Jones Act: additional sums were given for land-
grant education.
1962
Manpower Development and Training Act; federal funds were
set aside for continuing education.
1964

Housing Act, Title VIII; provided for higher education
training of specialists in the area Of Community
Development and Urban Problems.

Higher Education Act; provided for the Administration Of
the Community Services and Continuing Education
Program by the Office Of Education.

1966

Adult Basic Education Act; established additional funds
for continuing education.

 

25

Dr. William 0. Thompson, who was president Of the
Ohio State University is quoted, "an institution is to be
Operated for the good it can do: for the peOple it can
serve: for the science it can promote; for the civilization
it can advance."40

It is apparent that Morrill agrees with Thompson
when he contends that no intellectual service is tOO un-

dignified tO be performed41

and that "practical utility,
not snobbish academic respectability or any notion Of intel-
lectual aristocracy, must be the test Of institutional
integrity."42
In discussing the mission of the state university,
Morrill emphasizes knowledge for use. "The purpose Of the
state university is the threefold task of teaching, re-
search, and public service; and in each Of these three
duties the emphasis has been on the usefulness and relevance
Of all learning tO a better life and to the maintenance Of

"43

a free and democratic society. Likewise, Morrill later

identifies the interdependence of public service on research
and instruction.44

Morrill stresses that the public relations director
Of the university can not do everything that is necessary--

"but only presidential encouragement and direction can

spread through the countless campus channels the awareness

26

Of total institutional integrity as the source Of each
Specialized service and competence."45
In summary, Morrill develOps the concept Of
knowledge for use and establishes its legitimacy and
importance within the American University.

Another volume dealing with the history Of the

American state university is The State University and

 

Democracy by Allan Nevins. According to Nevins, from the

 

beginning in the United States the concept Of universities
having a regional function was a reality. He states that
the nation "was so practical minded that the spirit Of
academic work became in increasing degree utilitarian."46
He continues, "finally, the mid-century concept
Of democracy included a belief that men learned by doing:
that the best instruction came from setting their aims high
and accepting tuition from trial and error; . . ."47
Nevins Offers the following historical account.
During 1850 higher education needed to be brought into
harmony with the needs Of a practical, growing people.48
Jonathan Baldwin Turner published a letter in the Prairie
Farmer early in the 1850's advocating the use of the
nation's vast public domain for industrial education.49

Justin S. Morrill, a congressman from rural Vermont,

believed in Turner's idea and ultimately was reSponsible

27

for the Morrill Act Of 1862 which established the land-
grant institutions.

The concurrent revolt which developed against the
classics was "compounded primarily of four elements: re-
jection Of the tyranny Of classical and theological studies,
championship Of science, insistence on attention to agri-
culture and the mechanic arts, and--most important of all--
a demand for greater democracy in education."50

The two basic curricular changes which Nevins
reports are the specialization Of university work to furnish
professional preparation and an emphasis on thinking and
analysis as Opposed to rote instruction.51 The University
Of Michigan, according to Nevins, led the way in forward
movement between 1890 and 1920 in combining progressivism
and sound traditional standards.52

The primary innovations attributed to the publically

supported universities as compared with the privately en-

dowed schools were:

1. Co-education was slowly becoming universal
2. Engineering

3. Agriculture

4. Exclusion Of church or chapel

5. Compulsory drill

6. Absense Of high tuition charges

28

7. Extension activities--distribution Of
information and ideas tO the total public

8. Strong link between state universities and
the high schools

9. Atmosphere Of the state university de-
rived an idiosyncratic quality from the

state (loyality to the state emerged).53

With the innactment of the Hatch Act, research was
lifted "from local and immediate tasks to great fundamental
problems--that is, from applied science to pure science."54

Finally, Nevins argues that if the Morrill Act had
not been passed, it would have only been a short time until
every state would have had its state-supported university
since Virginia, Missouri, and Michigan had paved the way.
The Morrill Act simply provided the motivation and resources
with which to establish the state-supported universities.55

The third book, Colleges for Our Land and Time is
devoted primarily tO the establishment Of the land-grant
institutions. In discussing Jonathan Turner's master plan
for a state industrial institution in Illinois, Eddy re—
marks that the plan has been called the "common man's
educational Bill Of Rights."56 Eddy also reports that there
is no record Of an "intimate relationship between Turner

and Justin S. Morrill.57

29

In presenting the sequence Of events leading to
the present day higher education institutions, Eddy dis—
cusses the growth Of teacher-training, engineering, veter-
inary medicine, research, and even the develOpment Of the
4-H program. From 1938-1956 he states that the emphasis
was on "the student's capacity to think, to judge critically
and without bias, and to make intelligent decisions."58
Eddy reports that by 1951 several institutions had
develOped centers Of continuing education to coordinate all'

59 Furthermore, in the years follow-

university extension.
ing World War II, two new areas Of service emerged--educa-
tional television60 and international programs to assist
develOping nations.61
The democratic principle Of the importance of the
individual is supported by Eddy. "The Land-Grant Colleges
thus are committed to the concept that the state and the
nation prOSper in proportion tO the develOpment Of the indi-
vidual."62
In concluding that there is no room for an ivory
tower on a land-grant campus Eddy quotes President John A.
Hannah, former President Of Michigan State University,
“it [the confidence of the people] must be cultivated and
fertilized--cultivated through continuing useful services
and fertilized with new ideas, new programs, new develOp-

ments, to meet the ever changing public need."63

30

The proceedings Of the "Convention Of Friends of
Agricultural Education" August 24-25, 1871, re-creates the
tremendous concern felt by the early leaders Of the land-
grant institutions about the future emphasis which these
institutions should take. Discussions centered around
whether or not agricultural instruction should be regarded
as an art or as a science, the apprOpriateness Of student
labor, the value Of forming a continuing organization to
deal with mutual problems, the merits Of admitting women
scholars, and creative new agricultural experiments.

It is inspiring to note the conscientiousness of
that dedicated constituency which met in 1871 and to see
the future implications Of their report. For example, one
of the resolutions concerning agricultural experimentation
was later adopted by the establishment Of the Hatch Act of
1887 which created the agricultural experimental stations.
The resolution read as follows:

Resolved, that a committee, consisting Of one

from each of the several states in which an insti-
tution founded on the national grant has been
organized, be appointed by the president, whose
duty it shall be to memorialize Congress and the
several state legislatures for the Speedy establish-
ment of such stations throughout the country.

Another recommendation was enacted in 1887 when the Associa-

tion Of State Universities and Land-Grant Colleges was

established.

31

In summary, the transcript Of the proceedings Of
the 1871 Convention Offers a realistic insight into the
goals and dreams of those courageous leaders in American
higher education.

The interested reader is referred to Alfred Charles
True for an excellent account Of the history of agricultural

65 Although this reference

extension work from 1785-1923.
was useful in understanding the importance and establishment
Of agricultural extension work, it was not considered es-
sential to the develOpment Of the present literature review.

A history Of the development Of the public service
function in universities has been presented in this section.
The following division will discuss the current issues and
future priorities that must be established in the area Of
university public service.

Current Issues in Uni-
versity Public Service

 

 

One Of the major issues regarding university public
service is to determine the apprOpriate level of university
involvement in the greater community. Several authorities
have chosen to discuss the future of university-Sponsored
public service. According to Nyquist, "increasingly our
higher education institutions will find a closer inter-

dependence and interrelationship with society, and this is

32

particularly true for urban institutions."66 Kerr comments
on the "reluctant merger" of campus and society, but fails
to explore the idea Of community development.67

Swanson and Lindley chose to expand the concept of
public service and suggest that community development
continues beyond Simple individual skill develOpment—-which
is Often the goal in university and continuing education
programs. Community development, in contrast to conventional
public service, is concerned about the social consequences
Of Skill development. Likewise, community development
focuses on training "individuals to accomplish planned
changes in community relationships."68

A major question which must be answered is whether
or not university public service Should be broadened as Kerr
suggests to a concept of "life-long learning"69 or expanded
to a community develOpment concept? It must also be de-
termined whether such concepts are mutually exclusive. And,
if not mutually exclusive, can a commitment to community
develOpment parallel, or perhaps enhance, a commitment to
life-long learning?

Another critical issue centers around who should
finance university public service and university-sponsored
community development projects. According to Knight in

"The Final Report Of the Seventeenth American Assembly,"7O

33

the government alone should pay all of the costs--direct
and indirect--for the service it requests.

Ewald Nyquist contends that the "financing Of
higher education community service . . . must come pri-

71 It will be noted that Nyquist

marily from government."
does not limit his comment tO services initiated by the
government as did Knight in the preceding paragraph.

Finally, Nyquist addresses the issue that is most
relevant to this study. He fears that university community
service does not have high priority among legislators.72
If he is correct, could it be that educators have failed
to enlighten their legislative colleagues as to the in-
creasing importance Of university-sponsored public service?

Although Eulau found "strong support" for university-
sponsored public service activities in his research for the
Carnegie Commission, the literature lacks a study designed
solely to elicit legislative attitudes toward the public
service mission of state-supported universities.

The next section is designed to highlight the

relationship between the university and society and to dis-

cuss the mutual eXpectations of each.

The University and Society

Are the goals for universities and society mutually

exclusive, supportive, or essentially the same? Knight

34

takes the position that goals for education are essentially

73

goals for the nation. Nyquist believes that through com-

munity service, the university and society may accomplish
common goals. He states that:

Community service and continuing education
are one of the best vehicles available for higher
education's overall attempt to relate to society
and to help in solving its many problems--for
improving town-gown relations, involving students
in meaningful educational experiences, providing
mid-career and inservice educational programs for
public Officials and para-professionals to mention
only a few.

Three leading educators have addressed themselves
to the mutual influence exerted by the university and the
greater society. According to Chambers, "higher education
is a public Obligation because society as a whole is its

"75 McGrath maintains that the uni-

principal beneficiary.
versity as a part Of a dynamic society, must continually
be evaluated and modified in order to more adequately meet

76 Kerr reports that follow-

the changing needs of society.
ing the growing pressures facing American higher education
during the 1960's, a period Of reassessment and transition
emerged which enabled the university to respond to the
needs Of a rapidly changing society.77
During the late 1960's universities began to re-
examine their traditional goals and purposes in light Of

the changing attitudes Of society. During the early 1970's

35

Young advised university administrators to re-assess the
lawful aims and purposes Of universities and then to
determine the rules and regulations that were necessary
to reflect those aims and purposes.78 Kerr states that
during the period Of transition following the 1960's,
various task forces and commissions were established "to
examine the goals and structure Of higher education in its
rapidly changing context."79
The need was further seen by McGrath to include all
social organizations in the reassessment by calling for "a
re-examination Of traditional purposes, programs, and pro-
cedures" in each social organization.80
The university as a dynamic social institution
must be continually evaluated and modified in order to meet
the needs of its individual constituency as well as the
needs of the greater society. The findings of studies con-
ducted within individual university communities provide
university Officials with an important tool for establish-
ing a more realistic basis for decision-making. These
findings Should be studied, evaluated, and then, according
to McGrath, "basic change should be prOposed."81
AS the needs Of the citizens Of the state are
changing, the university must be Open to the accompanying

changes it must make. The Capitol and the Campus--State

ReSponSibility for Post Secondary Education reports that

36

the goal Of meeting the needs Of the citizens Of the state
for training beyond the high school has been expanded.82

Meeting the needs Of the citizens now means:

1. Training for greater prOportions Of the

populations.

2. Training of citizens over more Of their

lifetime.

3. Broader ranges and alternative choices in
types Of training.

4. Higher levels of training.83

Further state and societal demands include eXper-
tise that will aid in solving today's social problems.
According tO Rosenberg, "when higher education becomes
fioriented toward public Objectives, it is likely that the
functions of our institutions will change and perhaps the
institution as we know it today will also change."84

TO the skeptic who may be worried about the desira-
bility Of greater participation by society in institutional
matters, Kerr Offers reassurance. He does not believe that
increased societal involvement in university affairs means
loss Of internal institutional control. Quite the contrary,

Kerr maintains that today, society is more desirous of

Objectivity and more tolerant of freedom than ever before.

37

As a consequence Of having a more Objective and tolerant
society, Kerr States that universities should not fear
that further involvement by the society at large will
cause the university to lose its Objectivity and freedom.85
The Committee on Government and Higher Education
in 1959 stressed the importance Of societal participation
at the governing board level. According to the report,
the freedom and autonomy Of universities is best protected
if management is put "in the hands Of an able independent
lay board Of trustees, who themselves are held accountable
tO the peOple Of the state for wise and effective action."86
The public service role Of universities which in-
volves consulting and advising society is strongly supported
by Knight,
. . . colleges and universities move constantly
through the unexamined life, the abortive Opinion,
the blind prejudice. They make the condition Of
/ frontier thinking possible for their world, not
i only are they wise servants of their society, but
\‘1n th1s respect they are 1ts adV1sors as well.
The societal relevance Of university public service
is also evidenced by the Rutgers University urban agent
program which is based on the rural cooperative service

concept. "The focus is on action--how best to utilize the

knowledge Of social scientists and the experiences Of
f,”

,/
others to bring about desirable changes in society."88

Thus, society and the university form a unique partnership

as they establish their relationship with one another.

38

One can not discuss the relationship between
society and the university without a thorough understanding
Of the relationship between the government Of society and
the university. The next section deals with the state
government and the university.

The University and
the’State Government

The university, while working with government
Offices and agencies, joins with the government to accomplish
mutual societal goals. In The Efficiengy Of Freedom the pre-
ceding statement is supported:
The essential freedom Of higher education is
wholly compatible with the effective Operation of
democratic government. Indeed, agencies of the
state government and the state's educational insti-
tutions form an indispensable partnership, and help
or harm to either affects all of society. Both
share a common purpose--service to society, the
constant advancement Of human welfare.39
Both the university and the legislature are committed
to the principle of public service. The university approaches
its public service function by applying the knowledge and
skills developed and transmitted by the institution. The
Michigan legislature by definition is composed Of elected
public Officials whose job it is to pass suitable laws in
all matters relating to the "general welfare of the people

Of the state."90

39

The exact relationship between the legislature
and the universities has been an area of constant debate
and continual interpretation. Mitau maintains that: "In
the nineteenth century when most state universities were
established in the belief that higher education was a prOper
public concern, legislatures proceded to create boards Of
regents to manage the affairs of these new institutions as

"91

agencies of statement government. The people then es-

tablished "a pattern of limited internal university autonomy

combined with clear-cut responsiveness to the public will

as expressed by the political branches Of state government."92

Mitau continues that although the university has
not been subjected to strict legislative supervision, "most
state universities nevertheless, were not permitted to for-
get that their budgets, personnel and policies were as a

matter Of public law ultimately subject to legislative over-

sight and control."93

Today there is growing support for the position
expressed by Gould:

That the public universities Of today and tomorrow
should have their basic freedom Of action guaranteed
to them by constitutional authority; that they Should
use their power under such authority only when
necessary as a protection; and that they should deal

\ reSponsibly, perceptively, and realistically with all

{Elements of State government, seeking thereby to
create a climate of understanding and trust which
will make recourse to legal defenses unnecessary in
all but the most extraordinary circumstances.94

40

The university must continually address itself to
the important role played by the state government in the
area Of financial support. "Dependence on public support
unavoidably brings a state university close to the legis-

lature and governor."95

Certainly one would not deny that
the legislature, as guardian Of the purse strings for
higher education, plays a key role in the progress and plan-
ning Of the state-supported universities.

The outside influence on higher education is real.
"NO state college or university" according to Georgia's
.I/former Governor Effis Arnall "can be completely free from

"96 Even a state which guarantees con-

political control.
stitutional immunity to its universities is subject to some
governmental influence.

The Michigan legislature was the first state legis-
,lature to grant the coveted status of constitutional autonomy
ito a state university. In 1850 the state Of Michigan demon-
strated its unprecedented position regarding the desira-
bility Of assuring constitutional autonomy to a state
university. In 1896, the Michigan court ruled that state
universities Officially are the fourth branch Of the state
government.97

In 1908 and 1959, Michigan State University and

Wayne State University respectively were granted the same

41

constitutional status shared by their sister institution,

the University of Michigan. As a result Of the constitu-

tional revisions Of Article VIII in 1963, each of the re-

maining Boards Of Control of Michigan public-supported

four year institutions Of higher education was established

as a body corporate. Article VIII also states that any

future institution Of higher education which has the authority

to grant baccalaureate degrees in Michigan "shall be a body

corporate“ and therefore shall possess this unique status

shared by institutions in only nine other states.98
A former controller Of the State Of Michigan, John W.

Lederle, Offers several suggestions, see Appendix A in Moos,

on improving legislative-university ties in Michigan. Among

his recommendations are the following:

1. The university should become sensitive to
the dilemma Of the state government: "As
the level of services which people demand
Of their state governments rises, the compe-

tition for limited revenues becomes more

2. The universities should coordinate their
lobbying efforts: "If public higher educa-
tion in Michigan could agree and present a

common front, some Of the fumbling, inept

42

questions raised by budget Officers and

legislators would never be asked."100

3. Improvements must be made in the university
education for future government administrators:
"First you should look at your campus educa-
tional role, and improve programs in public

‘administration so as to raise the level Of
public service and turn out better potential

government administrators."101

4. University consultation with the professional
associations of government Officials, such as
the State Purchasing Officers, should be

attempted.

Another reference supports the idea that:

The university might be prudent to help culti-
vate the legislative Specialist in higher education,
not in the selfish hope Of co-Opting him but to pro-
vide the interested and perceptive legislator with
policy information that all legislators would not or
could not absorb, thus building depth of understand-
ing within the legislature.102

As previously mentioned, OOOperative legislative-

university planning is essential in the area of university
public service. If the state government allocates additional
funds for public service, the university will need to be

more Open to planning suggestions from the government. The

43

necessity Of Openness by the university and cooperative
planning with the government is the thesis Of the article
on "College and Community" by Swanson and Lindley.103
It has been stated that today the city hall and
state capitol are being drawn to the university as never

104 Much can be said about the need

before and vice-versa.
to make this mutual attraction into a mutually constructive
relationship. The fact that the university and the legis-
lature will always have tensions is affirmed by Goodall who
feels that the inevitability of such tensions is the result
Of the university and the legislature having different per-
spectives and reSponding to different pressures.105
Senator David Kret establishes the ideal outcome Of
a working relationship between a university and the legis-
lature. "After all, both legislators and educators should
be able to work together to achieve the desirable benefits
Of higher education at the lowest cost to the public."106
The final section Of Chapter II is a critique of

the findings Of the Legislative Educational Studies which

deal most directly with the present study.

Legislative Educational Studies

The literature reviewed in this final section in-
cludes the published research which has the most direct

application tO the present study.

44

There are three major legislative studies which
are most related to the topic Of state government and
higher education. In a seventeen month study reported in
The Efficiency of Freedom, both government Officials and
educators were interviewed in thirty-nine states-~with an
average Of eleven interviews per state.

This research was confined to the relationship
between the state government and the state colleges and
universities. Specifically, the goal Of the groups Of
prominent statesmen and educators--The Committee on Govern-
ment and Higher Education--was to define the relationships
that should exist and to identify areas where the state
government has tOO much control.107

Data collection techniques consisted Of question-
naires, personal interviews, correspondence and Special
meetings with government Officials and educators.

The interview was described as informal and followed
the following procedure: A description Of the study was
presented, then an explanation of the types Of problems was
given and finally the Official described the governmental-
educational relationship as he or She saw it.

It was stated that extensive notes were taken at
the conclusion of each interview but generally not while

the reSpondent was present.

45

The report concludes that:

The essential freedom Of higher education is
wholly compatible with the effective Operation Of
democratic government. Indeed, agencies of the
state government and the state's educational insti-
tutions form an indiSpensable partnership, and help
or harm to either affects all of society. Both
share a common purpose--service to society [emphasis 108
supplied], the constant advancement of human welfare.

Malcom Moos and Francis Rourke, political scientists,
assisted the committee by preparing reports which they

published in the impressive companion volume--The Campus and

 

the State.

 

This second report, published under the guidance
Of the Committee on Government and Higher Education, involved
344 educational institutions and required twenty-six months
for completion. The thesis Of this volume is the impact Of
state administrative controls upon the management Of state
colleges and universities.

In reporting the data, M008 and Rourke grouped the
reSponses of the 440 state and educational Officials inter-
viewed into three categories. They found that most respon-
dents "Spoke freely but not intimately" and seemed to want
to present an accurate picture Of the situation. The
second group of reSpondents "used the interview as an
Opportunity tO 'tell all' about their problems . . ."

Those in the third category "Obviously had much to say but

declined tO provide information because Of their fear that

46

its publication, even without identifying the source,
would do violence tO the status Of the Official or the
cause he served."109
Only one chapter in The Campus and the State was
devoted tO problems Of higher education and the legis-
lature. According to Moos and Rourke, ". . . it is the
executive rather than legislative Officials who are today
regarded as representing the chief threat to the inde-
pendence Of institutions Of higher education."110
A more recent major legislative study conducted
in higher education used the personal interview method of
gathering data. Heinz Eulau and Harold Quinley in State.
Officials and Higher Education report their research for
the Carnegie Commission on Higher Education. This book
summarizes the findings Of the interviews given to legis-
lators and other state Officials most closely connected
with legislation or apprOpriations for higher education in
each Of nine states. The interviews ranged from one-and-a-
half to two hours in length and consisted of both Open-
ended questions and agree-disagree items. It was reported
that each author and all interviewers were impressed "with
the relative accessibility, the cooperative attitude, and
the frank and Open responses" Of the respondents in all Of

111

the states. According tO Eulau and Quinley, in their

Opinion, it was important that the interviewer be perceived

47

as a professional interviewer on staff Of the "State

Legislative Project."112

The complete interview was

taped where there were no Objections; however, the authors
reported difficulty in getting and using the complete tran-
scriptions.

In presenting the data, unfortunately, little
information is given by Eulau and Quinley other than in
final summary form. The inclusion Of data such as:
political party differences, state Officials and legis—
lative differences, and higher education and apprOpriation
committee differences would have been useful in understand-
ing the report. However, the basic weakness Of the data-
reporting, in the Opinion Of this researcher, is the lack
Of a numerical breakdown Of the questions to support the
conclusions given by the commission.

Examples of the summary statements relating tO
research and public service are quoted below:

It is clear that legislators do not give a high

priority to expenditures on university research.

They are willing to let the federal government sup-
port research programs, and they understand the
necessity Of research, even so—called basic research,
in fields visible to them in terms Of human service,
such as agricultural productivity, medical care, and
engineering: but legislators have little understand-
ing Of the place Of research in the education Of
graduate students and only a vague understanding of
social science and research in the humanities.

This point is Of great concern to the major

universities as they project their growth at the
advanced and doctoral levels and as they are called

48

upon to meet society's demands for research scientists
and doctorates.

Obviously, the legislative reaction here is de-
pendent upon the public perception, or lack of it,
and the gap between the universities and the public 113
on this point needs immediate and effective attention.

The legislative support for the public service
activities Of the universities is encouraging. How-
ever, here lies a problem Of deep significance because
faculties which must staff the public service functions
traditionally have given a low priority tO their personal
commitment. Furthermore, the academic value system for
professional advancement does not give adequate recog-
nition to those engaged in public service.

This point has relevance to the lack of legislators'
interest in basic research. Encouragement is given to
research which is clearly visible in problem solving
in areas that are important to the respondents. Perhaps
the research activity by university peOple can give
greater emphasis to the areas Of immediate public con-
cern. A by-product will be the training Of students
in a way that will have more meaning to them in their
field Of employment, either in academia or in govern-
ment or in the private sector.114

The Carnegie Commission study by Eulau and Quinley

suggests that the results Of their research Show "strong

{support for public service activities Of colleges and uni-

5* versities in solving problems that affect the welfare Of

the state and its people.

"115 It was further concluded

that disagreement occurred over the role of the university

as an "agent of social change or racial equality."

Officials disagreed "over whether they should promote social

equality by providing free education for all and by making

Special efforts to assist individuals from minority groups,

poor families, or urban areas." Their disagreement included

49

both the principles involved and the "means to effectu-
ate change."116

The present research, although most closely re-
lated to the research done by Eulau and Quinley, differs

on the following major points:

1. Only state legislators will be included in

this study.

2. The research will be confined to one state—-
Michigan--a state which was not one Of the

nine selected by Eulau and Quinley.

3. The range Of questions will be smaller—-
primarily being restricted tO functions Of
higher education--Specifically, the public

service function.

4. A greater breakdown will be given in reporting

the data to support the final conclusions.

5. The researcher will be a doctoral candidate.

Summagy

Chapter II presented the published literature re-
lating to the public service function Of state-supported
universities. For greater clarity, Chapter II was divided

in the following seven sections:

50

Public Service as a Function of Higher

Education

The Role Of Public Service in State-Supported

Universities

A Brief History Of University Public Service
Current Issues in University Public Service
The University and Society

The University and the State Government

Legislative Educational Studies

Chapter III contains the design and methodology Of the

study.

CHAPTER III

DESIGN AND METHODOLOGY

Introduction

This chapter will describe the methodology and
procedures used in the study. A description Of the follow-
ing aspects Of the design is included: The pOpulation,
sampling procedures, the research instrument, data collection,
the interview method, the interview schedule, and data

analysis procedures.

The Research Population

 

There were five different populations selected for
this study. The populations chosen for inclusion were the
legislative standing committees in the Michigan legislature
which most directly affect higher education in Michigan.
The committees included: House Appropriations Committee,
Senate Appropriations Committee, House Education Committee,
Senate Education Committee, and House Committee on Colleges

and Universities.

51

52

Sampling Procedures

It was decided that each sample would include at
least 30 percent Of the membership Of each legislative
committee in the study. Furthermore, it was determined
that when, as in the case Of the Senate Education Com-
mittee, 30 percent constituted fewer than three legislators,
three members of a committee would be chosen. Therefore,
at no time were there fewer than three members Of a com-
mittee interviewed.

Due to the fact that several legislators held
membership on two Of the legislative educational committees
to be sampled, the following procedure was adOpted to use
in the event that a legislator's name was drawn for a second
time to be included in a sample. If the name Of a legis-
lator previously chosen for membership in the research
sample was drawn a second time, at that time the name would
be discarded from consideration in the second sample. An-
other selection would be made from the remaining members
on the second legislative committee in order to complete
the sample.

Each Of the five research samples was selected by
a simple random sampling technique. For each sample, the

following procedure was used:

53

l. The number of legislators to be sampled
from the committee was calculated according

to the previously discussed procedure.

2. The names Of all members of the legislative
committee to be sampled were typed on indi-
vidual pieces Of paper, folded, and placed

in a covered box.

3. The pre-determined number Of legislative
names was drawn from the box; the names

selected constituted the research sample.

The Research Instrument

The instrument was designed by the researcher and
consisted of two parts. The first part Of the question-
naire contained twenty items and required the reSpondent
to answer whether he or she agreed, disagreed, or was un-
decided on each item. The reSpondent was encouraged to
Offer additional remarks if he or she felt that such com-
ments were necessary for clarification. A great deal Of
additional information was received from such qualifying
statements. The addition of the "undecided" category as
a means Of providing a more complete range of choices in
a closed form questionnaire was considered to be essential.

As Van~Dalen reports, the inclusion Of the "undecided"

54

category improves the forced-choice nature Of a structured
questionnaire which can limit responses to "agree" and
"disagree."117
Part two of the questionnaire was designed to
allow the respondent to elaborate on Michigan higher educa-
tion in general and Specifically to address himself or her-
self to the three traditional functions Of higher education.
Two Open—ended questions were contained in the second part
of the questionnaire-~thus allowing the legislators to pro-
vide information of their own choosing and to eXplain their
responses to the questionnaire items. By allowing the
participants to answer in their own words and to reSpond
from their own individual frames of reference, the subjects
had an Opportunity to reflect motives, attitudes, or pro-

visional conditions upon which their answers were based.118

Data Collection Procedures

 

Prior tO collecting the data, the inverview was pre-
tested with two state legislators who were not in the
research sample. A Democrat from the Michigan House of
Representatives and a Republican from the Michigan Senate
were chosen for the pilot. In this way, legislative com-
ments and suggestions for improving the interview were
Obtained, considered, and, when appropriate, were incorpo-
rated into the research instrument as well as into the inter-

viewing procedure itself.

55

Those legislators in the sample were sent indi-
vidual letters Of introduction from the Executive Vice-
President at Michigan State University. At Michigan State,
the Executive Vice-President serves as the Official uni-
versity liaison with the state legislature. The letters
eXplained the area of the research study and the researcher's
need for an appointment with the legislative educational
leaders. Two days after the original letter Of introduction
had been mailed, the researcher sent a letter to each member
of the legislature chosen tO be in the study. The letter
from the researcher stated that each legislator would be
contacted by phone within the next few days to arrange a
convenient time for the interview. Interviews were arranged
with all but one Of the legislators in the original sample.

After all of the data had been Obtained with the
exception Of one interview, it became evident that an inter-
view with this person would be impossible within the time
limits Of the study. Therefore, another name was selected
from the same committee. The final member Of the sample
was contacted directly by the Executive Vice-President Of
Michigan State and the interview was conducted on the
following day. All interviews were completed during June
Of 1973.

The interviews, with one exception, took place in

each legislator's Lansing Office. In the case Of the

56

exception, the interview was conducted in the side room

adjacent to the floor Of the Senate Chamber.

The Interview Method

The research data was Obtained through the use of
a questionnaire which was given via a personal interview.
The choice Of the personal interview involved the follow-
ing rationale: The interview Offers the researcher an
Opportunity to discuss face-to-face with each participant
the purpose Of the interview and to again guarantee anonymity
personally to each participant. Interviewing also has an
advantage Of allowing the researcher to rephrase a statement
given by the respondent if the respondent has given contra-
ciictory or unclear remarks. It has also been found that
:fewer partial reSponses and refusals to answer occur when
tflne researcher directly presents the questionnaire, as
Opposed tO sending the questionnaire through the mail.119
Finally, other legislative researchers ' (Eulau, Ferguson,
arnd Moos) had successfully utilized this method and en-
dOrsed it.

In using the interview method, it is essential that
time researcher records all responses which pertain to the
r-‘e$earch tOpic. Depending on the length Of the anticipated
responses and the categorization Of data, the researcher

In‘-1-‘3t.choose whether tO take notes during the interview,

57

write a summary from memory after the interview, or tape
record the session. Likewise, it is imperative that the
interviewer exhibits Objectivity during the interview.
By recording all pertinent information and by demon-
strating a desire to be Objective, the researcher can
maximize the effectiveness Of the interview method.

In this study the problem Of manipulating the data
Obtained by the interview method was reduced considerably
by dividing the questionnaire reSponses in part one into
the AGREE, DISAGREE, and UNDECIDED categories. Although
a great deal Of information was Obtained in the Open-ended
section Of the interview which could not be incorporated
into the findings Of this study, it was felt by the re-
searcher that the interview method generated more in-depth
responses regarding the public service function Of uni-
versities than could have been Obtained by use Of an im-

personal questionnaire alone.

The Interview Schedule

After an initial introduction, the interview began.
The introduction to the interview included a statement Of
the purpose Of the study, a guarantee Of anonymity, a
definition of the three functions Of higher education, and
a request to use a portable tape recorder during the second

part Of the interview. The complete text Of the introduction

58

is located in Appendix A. During the introduction to the
interview, each legislator was given a copy of the defi-
nitions Of research, instruction, and public service as
used in this study. The legislators were permitted to
keep the definitions for referral whenever necessary
during the interview. (See Appendix A.)

Each reSpondent was then given a copy Of the
Legislative geestionnaire (Appendix A) which included the
twenty items in part one. The interviewer read each state-
ment on the questionnaire aloud while the legislator followed
on the OOpy which had been given to him or her. ReSponses
were recorded on the schedule by the interviewer.

Part two was administered without the legislator
having a copy Of the questions and, as indicated before,
was tape recorded in order to assure more accuracy in 0b-
taining the data for the Open-ended section Of the question-
naire. (See Appendix A.) All legislators agreed to the
taping of the second part of the interview; however, due to
lack Of time, two Of the interviews were not tape recorded
and it was thus necessary for the researcher to depend
solely on the notes taken during the interview.

After the pilot study, the researcher had estimated
the interviews would take approximately forty-five minutes
if conducted at a leisurely pace. Each legislator was

asked for an hour Of his or her time for the interview.

59

In actual practice the interviews ranged in length from
thirty minutes to one hour and forty minutes, depending
on the amount Of time each legislator chose to allocate

once the interview began.

Data Analysis Procedures

ReSponses to the items in the interview were tabu-
lated by number and percentage of reSponses. The data were
reported in the following ways: by comparison Of reSponses
of state senators and state representatives, by comparison
of responses of education committee members and apprOpria-
tions committee members, by comparison Of reSponses Of
Democrats and Republicans, and by comparison of reSponses
according tO length Of legislative service.

It would have been interesting to have seen what
differences if any, there were regarding university-
supported public service between male and female legis-
lators who served on the education and apprOpriations com-
mittees. Since only two women were members of the five
legislative committees in the study, a comparative study
between male and female legislators was an impossibility.
It was felt by the researcher that further identification
such as committee leadership would limit the guarantee Of
anonymity to these legislators. It also would have been

desirable to have compared the legislative voting records

60

for public service with the responses in the interview
about public service. As it was difficult to determine
whether support for higher education legislation in

general was support for public service in higher education,
no attempt was made by the researcher to comment on the
legislative voting records Of the interviewees. The voting
records of the sample on the 1970-73 Higher Education
ApprOpriations Bills are included in Appendix F.

The primary purpose Of the study was to determine
how legislative educational leaders who serve on education
and appropriations committees View the public service
function Of universities. In order to facilitate the under-
standing Of the reSponses regarding the public service
function, questions were also included which dealt with the
instruction and research functions as well as additional
questions about university education in general.

Direct statements or qualifying comments were in-
cluded in this descriptive study whenever such additional
information served to clarify the position of the re-
spondent or when the inclusion of the information provided

insight into a seemingly "contradictory" Opinion.

Summary

The methodology and procedures for the study were

included in this chapter. Descriptions were provided Of

61

the research populations, samples, the research instru-
ment, method Of data collection, and the analysis pro-

cedures. Chapter IV will present the data analysis.

CHAPTER IV
REPORT AND ANALYSIS OF THE DATA

Introduction

This chapter presents and analyses the research
findings. The data are reported to reflect how state
legislators in Michigan who serve on education and appro-
priations committees view the public service function of
state—supported universities. Secondly, an attempt was
made tO identify legislative differences regarding the
public service function Of universities when the data were
analyzed according to committee assignment, length of legis-
lative service, political party, and legislative house.

A numerical score was computed for each legislator
indicating the number Of positive (agree) reSponseS given
to the public service items on part one of the question-
naire. A breakdown for each Of the composite public service
scores is presented according to committee assignment,
length Of legislative service, political party, and legis-

lative house.

62

63

ApprOpriateness Of
Public Service

 

Most legislators in the sample felt that public
service is an apprOpriate function Of state-supported
universities. Table 2 indicates that fifteen members of
the legislative education and apprOpriations committees
agreed that it is appropriate for universities to serve
citizens directly through clinics, extension programs,
consultation, and the establishment of necessary facilities

and services.

TABLE 2
RESPONSES TO QUESTION 4

("It is appropriate for universities to serve
citizens directly through clinics, extension
programs, consultation and the establishment
Of necessary facilities and services.")

 

 

Agree Disagree Undecided

 

 

 

Total 15 2 1
Percentage 83% 11% 6%
Democrats 6 2 1
By Party
Republicans 9 0 0
Appropriations 5 2 1

By Committee
Education 10 0 0

 

64

Four Of the legislators who agreed with the appro-
priateness Of university public service and who served on
appropriations committees, commented further. A Democrat
remarked that "universities presently do not do enough in
this area." This same feeling was supported by a Republican
committee member who stated that increasing emphasis must be
given to public service, particularly in the area of urban
problems. Another Democrat added that ideally public service
programs "should be self-supporting or designed to become
self-supporting.“ The fourth legislator, a Republican,
cautioned that while public service activities are "highly
apprOpriate, they should be established only where needed
and when not available or duplicated in the community."

One legislator was undecided as to the appropriate-
ness of university-sponsored public service programs. This
legislator, a Democratic member Of an appropriations com-
mittee, stated that the reluctance to agree with uncon-
ditional support.for public service stems from the fact that
some schools may be involved in areas where they should not
be; such as, "the crazy practice Of teaching waitresses what
to wear."

Both legislators disagreeing with item four on the
questionnaire were Democrats who served on different appro-
priations committees. One legislator stated that only self-

supporting extension programs should be established and

65

that the practice Of a university faculty member providing
consultation to the greater community or state is un-
acceptable. This person further maintained that it seemed
that Often a faculty person "hires himself as a great man"
and as a result can turn Off the public. The second legis-
lator who disagreed with item four on the appropriateness
of public service felt that, "public service programs are
best left to professionals, as I am not sure that universi-
ties are capable of establishing and maintaining such
services."

It is interesting to note that all ten members Of
the education committees, as well as all nine Of the
Republican legislators were in agreement that it is appro-
priate for universities to serve citizens directly through
clinics, extension programs, consultation, and the establish-
ment Of necessary facilities and services. The two legis-
lators disagreeing with question four on the apprOpriateness
Of public service activities and the one legislator who was
undecided on this question were Democrats serving on appro-
priations committees.

Increased Priority
for Public Service

 

Most—legislators felt that universities should in-

crease the amount Of time Spent on public service activities.

66

For example, 61 percent Of the legislators agreed that
universities should devote more time and energy to public
service (See Table 3). Comments from legislators who
agreed with item six included the Republican member of an
education committee who lamented that legislators and
others "only hear the bad points about universities." In-
creasing the emphasis on public service, he maintained,
would improve the image of state universities. A Democrat
on the same committee agreed with question six, "because

the university should be problem-solving oriented."

TABLE 3
RESPONSES TO QUESTION 6

("Universities should devote more time and
energy to public service.")

 

 

Agree Disagree Undecided

 

 

 

 

Total 11 4 3
Percentage 61% 22% 17%
Appropriations 3 4 1
Committee
Education 8 0 2
1-2 Terms 6 0 0
Length Of _
Service 3 6 Terms 4 l 2
7—12 Terms 2 2 1
Senate 3 2 1
Legislative
House HOUSE °f 8 2 2

Representatives

 

67

Two members Of apprOpriations committees, who also
felt that public service should receive more time and
attention than is presently allocated, provided cautionary
comments. A Republican warned the university to "be aware
Of its limitations and not tO sacrifice other essential
areas" while promoting excellence in public service. A
Democratic legislator advised that universities should
avoid the temptation "to form separate institutions" as
universities begin to increase the amount of time spent
on public service.

Three legislators were undecided; one Of whom, a
Democratic apprOpriations committee member, responded that
he could not comment on universities as a whole, but that
he knew that "certain universities should increase their
public services while other universities should not—-since
the latter are presently doing a good job."

Of the four legislators who disagreed with item
six on increasing the priority for public service, three
chose to comment. One legislator, an appropriations
committee Democrat, disagreed and stated that the uni-
versity should be a "city Of learning" and as such, it
does not need to increase the amount Of services to the
public. Two Republicans on appropriations committees
also disagreed. One person stated that "whether or not

more time should be given to public service is dependent

68

on the university and whether such service relates to

the basic goals and Objectives Of the institution."

The other legislator boasted that "universities presently
are doing a lot [of public service] and doing it well."

Differences were Observed between committee
assignment, length Of legislative service, and the legis-
lative house. Half Of the members Of the appropriations
committees felt that university-sponsored public service
does not require more time and energy. In contrast, none
Of the ten legislators on the education committees dis-
agreed with the need tO increase the priority for public
service although two members were undecided.

The length Of legislative service demonstrated
an interesting tendency: Those legislators who were
serving their first or second term unanimously agreed
with question six while legislators with greater seniority
increasingly disagreed with the need tO increase the time
and energy eXpended on public service.

It should also be Observed that while only one
half Of the state senators advocated universities Spending
more time on public service, two-thirds Of the state
representatives felt that more time should be allocated

to public service.

69

Expansion Of Public Service

Legislators supported the idea that university-
sponsored public services should be expanded to provide
new and different programs to meet the changing needs of
the citizens. Nearly 75 percent of the sample agreed
that the university should expand the public services pro-
vided for citizens within the state. Table 4 reveals that
only two members Of the sample disagreed with item 13 and
three legislators were undecided about the need to eXpand
public services. (Each legislator had been told that the
term eXpansion meant the establishment Of new programs--
not the allocation Of more time to previously established

public service programs.)

TABLE 4
RESPONSES TO QUESTION 13

("The university should expand the public
services provided for citizens within the

 

 

 

 

 

 

state.")
Agree Disagree Undecided
Total 13 2 3
Percentage ' 72% 11% 17%
Senate 3 2 1
Legislative
House H°use °f 10 o 2

Representatives

 

70

Three Republican appropriations committee members
who agreed with the need to expand the university public
services made additional comments. One person said, "I
would hOpe that universities would concentrate on areas
with long standing problems--not on short term problems."
Another legislator added, "I am sure that universities
would support new programs only if the individual need is
present in the community and if the university's programs
will not duplicate existing community programs." The
third member cautioned that the university should expand
the public services while making sure that "instruction
doesn't suffer."

Universities should strive to develOp "self-
supporting" public services and Should guarantee that
"students don't suffer" as public services are expanded
according to two Democrats on appropriations committees who
agreed that public services should be eXpanded for the
citizens within the state.

Two education committee members who supported the
need to expand university public service provided their
own ideas as to how the university should gO about such an
expansion. The Republican senator advised the university
to look to the community and tO avoid "exclusive services
designed for those in the ivory tower." "Action research--

a combination of all three functions" was prOposed by a

71

Democrat who maintained that such research is the ideal
approach for universities tO use in assuming and eXpanding
their instructional, research, and public service functions.

The Republican senator who was undecided about the
need to expand university public services said that al—
though the question of expansion should be dependent on
each individual university, "I am not sure Of the kinds of
additional public service programs that could be develOped."
This comment brings up the question of the adequacy Of the
information regarding university public service activities
presently available to legislators.

After disagreeing with the need to expand university-
sponsored public services, a Democratic education committee
member stated that "although universities can apprOpriately
serve as counseling or resource areas, they should aim to
be a generator and refer peOple to state agencies." This
legislator felt that such,a referral was necessary since
universities are "not qualified to be doers" in the area of
public service.

It Should be noted that although one half of the
state senators were undecided about or disagreed with the
need to expand university-sponsored public services, ten
members Of the House Of Representatives agreed with and
only two were undecided about the desirability Of eXpanding

university-sponsored public services.

72

The University as a
Model for America

 

The legislative apprOpriations and education com-
mittee members were in disagreement as to whether or not
they considered the university to be a model for the greater
American society. Although two-thirds Of the sample re-
garded the university as a societal model, six legislators
disagreed with the premise that the university is a model
for American society (See Table 5). Of the six legislators
who disagreed with the question ten, five disagreed only
with the initial premise but were in agreement with the
concept that universities should take an active role in
helping America to solve her social and economic problems.
Only one legislator disagreed with the entire statement that
"if the university is a model for American society, it
should take an active role in helping America to solve her
social and economic problems." The legislator who completely
disagreed said that, "the goal Of universities is not to
enlighten others [non-students] but to be an academic insti-
tution and a challenge for students." This individual also
stated that "the institution [the university] Should stimu-
late students tO actively help in solving social and societal
problems."

Two Democratic senators who also disagreed with item

ten commented on what they consider the university to be.

73

One person defined the university as "a ghetto group com-
posed Of a group of similar people." The other senator
described the university as "never a model, but a con-

glomerate of peOple mixing together."

TABLE 5
RESPONSES TO QUESTION 10

("If the university is a model for American
society, it should take an active role in
helping America to solve her social and
economic problems.")

 

 

Agree Disagree Undecided

 

 

 

 

Total 12 6
Percentage 67% 33% 0%
House Of 10 2 0
Legislative Representatives
House Senate 2 4 O
Appropriations 4 4 0
Committee
Education 8 2 0
Political Democrats 5 4 0
Party Republicans 7 2 0

 

In contrast, a Republican state senator who agreed
with question ten defined the university as the catalyst in
the society. This legislator also advocated the practice

Of involving local community Officials in decision-making

74

which affects them. "The university should identify com-
munity needs and work with the community in meeting those
needs. For example, the answer to the public tranSporta-
tion problem has not been integrated into community action."

ReSponses are reported in Table 5 by legislative
house, committee and political party. Although ten members
Of the House Of Representatives agreed with question ten
and only two members disagreed, two-thirds Of the Senators
Opposed the idea that the university is a model for American
society.

It is interesting to note that while the appro-
priations committee members were evenly divided in their
support for item ten, only two of the ten education com-
mittee members rejected the concept that the university, as
a societal model, should actively help in the solution Of
America's social and economic problems.

The final Observation that should be made pertains
to political party. Although the majority Of both the
Democrats and the Republicans saw the university as a
societal model and felt that the university should actively
move to find solutions to the economic and social problems
Of America, the Republicans were more supportive Of this

concept than were the Democrats.

Life-Long Education
as a Public SerVice

 

Legislators were almost in complete agreement re-
garding the appropriateness Of life-long education as an
extension of the public service function of universities.
Table 6 confirms that only one legislator disagreed with
the statement that an apprOpriate extension of the public
service function of universities is to provide the Oppor-
tunity for life-long education. Unfortunately, the Republi-
can apprOpriations committee member who disagreed with this
statement did not comment as to why, in his Opinion, life-
long education is not an apprOpriate extension Of the public

service function Of universities.

TABLE 6
RESPONSES TO QUESTION 14

("An appropriate extension of the public
service function Of universities is to
provide the Opportunity for life-long
education.")

 

 

 

 

Agree Disagree Undecided

 

Total 17 1
Percentage ' 94% 6% 0%

76

Four members Of appropriation committees who
supported question 14 on life-long education did Offer
additional information. A Republican insisted that uni-
versities should provide "the setting [for public service]
but not the support." This same legislator felt that "the
general public should subsidize life-long education programs."

One Of the three Democrats who served on an appro-
priations committee argued that the importance Of life-long
education should not be minimized at this "time Of leisure"
in the American society. Another Democratic legislator re-
marked that it is especially crucial that life-long learning
Opportunities be provided by universities for "members Of
the professions." The third legislator, who was consistent
in his comments throughout the interview, stressed the im-
portance of universities develOping "self-supporting" life-
long education programs.

It is interesting to note that each Of the legis-
lators who did not agree with question 13 on the desira—
bility Of universities eXpanding public services provided
for citizens within the state, agreed with question 14 that
life-long education is an apprOpriate extension Of the
public service function of universities.

Also, it is important to note that the one legis-

lator who disagreed with question 14 on life-long education

77

supported question 13 on expanding university-sponsored
public services for citizens within the state.

Lgcation Of Public Service—-
Campus or Community?

The desirability Of locating some Of the university-
sponsored public services "off-campus" was strongly en-
dorsed by the legislators in this study. Only one legis-
lator (See Table 7) disagreed with the statement that many
university-Sponsored public services, such as: minority
counseling programs, drug and crisis centers, and vocational
develOpment centers can more apprOpriately be located in the
communities which will be served as Opposed to being housed
on the university campuses. Since the Democratic appro-
priations committee member who disagreed with question 15
did not elaborate on the reSponse, one can only speculate
as to why this legislator differed from the other legis-
lative education and apprOpriations committee members.

Additional information was supplied by five legis-
lators. The three Democrats, all apprOpriations committee
members, who agreed with question 15 Offered the following
clarification. One legislator cautioned that additional
public services should be housed in the community only "if
no other similar services in the community are available."
Another legislator stated that students should not be in-

volved in staffing Off-campus university-Sponsored public

78

services. Staffing should consist Of "professionals."
The third committee member felt that "consulting" should
have been included in the question since consultation is

most appropriately conducted in the greater community.

TABLE 7
RESPONSES TO QUESTION 15

("Many university-sponsored public services,
such as: minority counseling programs, drug
and crisis centers, and vocational develOp-
ment centers can more apprOpriately be located
in the communities which will be served as
Opposed tO being housed on the university
campuses.")

 

 

Agree Disagree Undecided

 

Total 17 1 0
Percentage 94% 6% 0%

 

The two education committee members who Offered
insight into their points Of view about university—Sponsored
Off-campus public services were both Republicans. A sug-
gestion was made by one legislator that the universities
should set up criteria for determining where university-
sponsored public services can best be located. The other
education committee member agreed with the appropriations
committee member who advocated professional staffing for all
university-sponsored public service centers. This legis-

lator furthermore felt that a procedure should be develOped

79

to carefully screen all Of the "participants" in the public
service programs to assure that potential participants have
a genuine need Of and an ability to profit from the service.

Public Service as
Option fOr FacuIty

As an alternative to a research requirement, the
legislative education and appropriations members strongly
agreed that a university faculty member should be given a
public service Option such as: consulting or advising which
is directly related to his or her professional field and
which is designed to help in solving problems. Table 8
reveals that only one person felt that a public service
Option should not be made available to a faculty member in

lieu Of a research requirement.

TABLE 8
RESPONSES TO QUESTION 18

("As an alternative to a research requirement,
a university faculty member should be given a
public service Option such as: consulting or
advising which is directly related to his or

her professional field and which is designed

to help in solving problems.")

 

 

Agree Disagree Undecided

 

Total 16 l 1
Percentage 89% 5.5% 5.5%

 

80

Regretfully, both the legislator who was undecided
and the legislator who disagreed with item 18 on the
questionnaire (both,wh6’were Democratic members of an
apprOpriations committee) failed to supply comments as to
why they disagreed with their legislative colleagues.

The question Of the desirability Of universities
providing public service Options for faculty members did
prompt six legislators to elaborate on the issue. Three
appropriations committee members and three education com-
mittee members provided the following comments. From the
appropriations committees, first a Democrat blasted the
present university emphasis on required research being a pre-
requisite for faculty tenure and promotion and blamed the
faculty for "not being concerned about professorship." This
legislator felt that public service Options should be
granted by "permission from the individual governing boards
and administrations Of the state universities." A Republi-
can argued that establishing a public service Option should
be the "administration's decision,"--not the decision of
the faculty. The third member Of the appropriations com-
mittee, a Democrat, added that the groundwork was "already
established" to implement the Option described in question
18.

The three members Of education committees provided

somewhat different reactions to question 18 than did their

81

apprOpriation committee colleagues. A Democrat preferred
that faculty members "have no requirement." Another
Democrat pleaded that the public service activities deemed
acceptable for university-Sponsored activities should
"serve the needs Of the general public and not be limited
to serving Ford Motor Company." The final suggestion came
from a Republican legislator who advised faculty who are
involved in public service "to come in as a member of the

team not as a director-type,‘ in order to maximize the

effectiveness Of the faculty in the community.
The Relationship Between

University Public Service
Activities and State Funding

 

 

How should government respond to universities that
become more involved in providing public services for the
citizens Of the state Of Michigan? According to the legis-
lators sampled, two-thirds felt that additional funding
should be made available to institutions which provide
additional public service offerings. Table 9 confirms that
a solid one-third of the legislators disagreed with question
16 which stated that if universities assume a greater share
of the state's reSponsibility for public service, then
additional state and local funds should be allocated for

such services.

82

TABLE 9
RESPONSES TO QUESTION 16

("If universities assume a greater share of

the state's responsibility for public service,
then additional state and local funds should
be allocated for such services.")

 

 

Agree Disagree Undecided

 

 

 

 

 

Total 12 6 0
Percentage 67% 3y3% 0%
Legislative Senate 3 3 0
House House 9 3 0
1-2 Terms 5 l 0
Length Of _

Service 3 6 Terms 6 l 0
7-12 Terms 2 3
Appropriations 3 5 0

Committee
Education 9 l 0
Democrats 4 5 0
Party
Republican 8 l 0

 

Five legislators who believed that increases in
university public service should mean comparable increases
in state and local funding expressed their Opinions on
this controversial issue. "Such additional revenue would
be allocated automatically--it's a foregone conclusion,"

maintained a Democratic appropriations committee member.

83

Another Democrat on the same committee argued, "yes, I
agree: but I would rather have professionals do this,
however." A Republican member Of the other apprOpriations
committee remarked that someone must decide "who can best
serve--the state or the university? Then there should be
a joint determination as to financing university-sponsored
public services."

Two Republican education committee members who
supported question 16 qualified their answers. One legis-
lator said, "there is no difference in the reSponsibility
Of the university and the state." The reSponsibility for
public service Should be a "combination Of a legislative
and university commitment." This same legislator stated
the following reasoning about the legislative-university
relationship: "Furthermore, it is my Opinion that autonomy
is not in the public interest." The other Republican educa-
tion committee member stressed that while agreeing that
additional funding should be available tO support increases
in public service activities, "universities may not always
need more public monies; perhaps what is needed in some
cases is a shifting Of funds."

Five of the six legislators who disagreed with
question 16 provided additional information to clarify
their responses. Comments from the apprOpriations com—

mittee members are reported first. A Republican argued,

84

"they do not!" The three Democrats on the appropriations
committee Offered the following eXplanations. One person
maintained that, "we need to determine the necessity for
the state or the university being involved in public
services and the corresponding reSponsibilities Of each."
Another member protested that "such a proposal is not
feasible!" The third legislator reasoned that since "the
university does not generate any dollars, both the state
and the university should work on establishing their priori-
ties as it may be that we do not necessarily need more
dollars." A Democrat on an education committee was con-
cerned about the "chicken-egg" nature Of question 16. This
individual stated that although actually agreeing with the
concept, he disagreed with the wording. "It should be the
other way around." He insisted that ideally the legislature
should be determining the state need for public services and
fully funding all approved university public service programs.
Question 16 on public service reSponsibility and
funding generated an interesting breakdown by legislative
house, length Of service, committee assignment, and political
party. In the Senate, only one half Of the legislators
supported this fiscal issue while three-fourths of the
members of the House favored the issue. Legislators who had
served one to six terms generally agreed that as universities

assume a greater share Of the state's responsibility for

85

public service, then additional state and local funds
should be made available. In contrast, those legislators
who were serving from seven to twelve terms tended to dis-
agree with question 16.

Committee assignment and political party also
reflected legislative differences. While only one Of the
ten education committee members disagreed with question 16,
62 percent Of the members Of the appropriations committee
disagreed.

Republicans strongly advocated providing additional
funding for increases in public services as compared tO

only 44 percent Of the Democrats who supported item sixteen.

Legislative Scores on
P 1c SerV1ce Items

In order to identify possible trends in committee
assignment, legislative house, length Of legislative service
or political party which might be present among the legis—
lators in the sample, a public service composite score was
determined for each of the eighteen legislators. This
score was calculated for each legislator by totaling the
number Of positive (agree) statements given on the eight
public service questions (See Table 10). Thus a legis—

lator with the most positive public service score would

have a score Of "eight" while a score of zero would indi-

cate the least positive public service score.

TABLE 10

POINTS SCORED ON PUBLIC SERVICE ITEMS

 

 

 

 

Total Points Number Of Legislators

 

Eight
Seven
Six
Five
Four

I-‘Nhi—‘bdxl

Three

 

The individual public service scores Of the legis-
lators ranged from eight to three. Table 11 presents the
total number Of persons in each category.

Seven Of the legislators earned a score Of "eight"
because they agreed with each of the eight public service
items on_the first part Of the questionnaire (See Table 11).
It should be Observed that all seven of these legislators
were education committee members and that six of the seven
legislators were members of the House Of Representatives.
The breakdown between political party is as even as it

could be-—with four Republicans and three Democrats.

87

TABLE 11

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES BY DIFFERENT FACTORS

 

 

 

 

 

 

 

 

 

 

Total Legislators 7 3 l 4 2 1
Democrats 3 1 - 2 2 1
By Party
Republicans 4 2 l 2 — -
House 6 2 l l 2 -
By House
Senate 1 l - 3 - 1
Education 7 - l 2 - -
By Committee
Appropriations - 3 - 2 2 1

 

The second highest public service score was "seven"
and was given to three apprOpriations committee members.
One Of the three legislators was a senator and two were
members of the House Of Representatives. Two legislators
were Republicans and one was a Democrat.

Only one person had a score Of "six"--a Republican
who is a member Of a House committee on education.

Four legislators scored "five" on the public
service items. Three Of these persons belonged to the
Michigan Senate and one was a member Of the House Of Repre-
sentatives. According to committee assignment and political
party the number Of legislators with a score Of "five" was

evenly divided.

88

Two apprOpriations committee members agreed with
half Of the public service items. Both Of these legis-
lators were Democrats who served in the Michigan House Of
Representatives.

The final representative--a Democratic member of
the Senate Appropriations Committee--agreed with only
three Of the public service items and thus received a
public service composite score Of "three."

Tables 12 through 14 provide additional information
regarding the political party, committee assignment, legis-
lative house, and length Of legislative service Of the
legislators within each of the composite score categories.

Table 12 reveals that the Democrats had a wider
range Of reSponses in support of public service than did
Republicans.

Table 13 indicates that the majority Of the educa-
tion committee members received an "eight," the highest
score for support Of university public service. The
majority Of the appropriations committee members, on the
other hand, had scores in the lower half of the distribution
although three members Of the apprOpriations committee
received a score Of "seven."

When political party and committee assignment were
classified together in Table 14, it could be seen that the

Democrats who served on apprOpriations committees with the

exception Of one member had the lowest composite public

service scores.

TABLE 12

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES ACCORDING TO POLITICAL PARTY

 

 

 

 

 

 

 

Political Composite Score
Party 8 7 6 5 4 3 Total
Democrat 3 l - 2 2 l 9
Republican 4 2 l 2 - - 9
TABLE 13

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE SCORES
ACCORDING TO LEGISLATIVE COMMITTEE

 

 

 

Committee Composite Score
Assignment 8 7 6 5 4 3 Total
ApprOpriations - 3 - 2 2 l 8

Education 7 - l 2 - - 10

 

90

TABLE 14

POLITICAL PARTY AND COMMITTEE ASSIGNMENT
OF LEGISLATORS IN EACH COMPOSITE
PUBLIC SERVICE SCORE CATEGORY

 

 

Committee Composite Score
and Party 8 7 6 5 4 3
ApprOpriations Democrat - 1 - 1 2 l
Appropriations Republican - 2 - 1 - -
Education Democrat 3 - - 1 - -
Education Republican 4 - l l - -
7 3 1 4 2 1

 

The majority Of the members Of the state House Of

Representatives had a composite score Of "eight" or "seven;

whereas, the composite public service scores Of state

Senators ranged from "eight" to "three" with the majority

Of the scores in the lower half Of the range (See Table 15).

TABLE 15

DISTRIBUTION OF COMPOSITE PUBLIC SERVICE

SCORES ACCORDING TO LEGISLATIVE HOUSE

 

 

w

 

Legislative Composite Score

House 8 7 6 5 4 3 Total
House Of Representatives 6 2 l l 2 - 12
Senate 1 l - 3 - :1 6

 

91

An interesting phenomenon was Observed when the
distribution Of composite scores according to length Of
legislative service was tabulated (See Table 16). The
majority Of the legislators who had served from one to
six terms were highly supportive Of university public

service as indicated by a composite score Of "eight" or

 

 

 

 

"seven."
TABLE 16
DISTRIBUTION OF COMPOSITE PUBLIC SERVICE
SCORES ACCORDING TO LENGTH

OF LEGISLATIVE SERVICE

Composite Number of Terms
Score 1-2 3-6 7-12

Eight 3
Seven 1 1
Six — 1 -
Five 2 2 -
Four — _
Three - -
Total 6 7 5

 

Conversely, those legislators who had served the
longest, from seven to twelve terms, were either very

supportive Of public service--with a composite score Of

92

"eight" or "seven"--or the least supportive--with a
composite public service score of "four" or "three."
ApprOpriateness Of the

Three Traditional Functions
of HigHer Education

The second part Of the interview consisted Of six
Open-ended questions (See Appendix A). This part of the
interview was tape-recorded, as previously mentioned, in
order to maximize the accuracy of the reporting Of the
Open-ended responses.

The first question in part two was designed to en-
courage legislators tO elaborate on an area that they could
easily respond. The question contrasted the forced choice
nature Of the items in part one. The question follows:
"Now let me ask a very broad question: How do you feel
things have been going in higher education in Michigan over
the past few years?"

The next questions were designed to enable legis-
lators to compare the three traditional functions Of higher
education. The statement was made that, "higher education
serves many functions--instruction, research and public
service." Question one read, "DO you have any preferences
regarding these three functions?" Table 17 shows that
eight legislators or nearly one half of the sample had no

preferences regarding the three traditional functions of

93

higher education. Six legislators stated that they had

a preference for instruction and two members indicated
that research was their choice. One legislator preferred
both instruction and public service while the preference

Of another legislator was public service.

TABLE 1 7
LEGISLATIVE RESPONSES TO THE QUESTION:
"Higher education serves many purposes--

instruction, research and public service.
DO you have any preferences regarding these

 

 

 

 

 

functions?"
ReSponses Number Of Legislators
NO Preference 8
Yes, Prefer Instruction 6
Yes, Prefer Research 2
Yes, Prefer Public Service 1
Yes, Prefer Instruction and 1
Publ1c Serv1ce
Total 18

 

Legislators who maintained that they had no prefer-
ences regarding the three traditional functions Of higher
education chose tO provide additional information. Four
Republican members Of education committees felt similarly.
One member stated that there should be "an apprOpriate

balance" among the three functions. The second person

94

stated that the three functions go "hand in hand" and
university excellence is really achieved by a "combination
Of all." The third legislator had no preferences but
called instruction the "cornerstone of the university."

The final Republican education committee member commented
that, "of course instruction is the main function Of higher
education, but you must have research to support instruc-
tion--and public service is very important; I'm strong on
public service. All three are absolutely vital to our
educational system and all three are necessary."

A Democratic member Of an education committee,
although stating no preferences among the three functions
Of higher education, stressed the appropriateness Of "de-
termining the emphases Of individual institutions" Of
higher education. Another Democrat on an education com-
mittee also chose to answer "no preference" but indicated
that perhaps an expansion Of the definition Of public
service would enable him to more accurately reflect his
particular point of view. This legislator reasoned that
universities should combine the three traditional functions
into a system of action research which involves problem
solving Specifically in the areas Of public and national
interest. Furthermore, this individual conceded that

"for such an integrated program, the university needs a

95

highly motivated student." This prOposed integrative
process would involve getting answers to "real questions
at the time one needs to solve a specific problem" there-
fore one would experience a desire to engage in research.
Of the two apprOpriations committee members
agreeing that they had no preferences regarding the three
functions of higher education, one commented further.
This legislator, a Democrat, insisted that instruction

and research compliment the excellence of the faculty."
Six legislators chose instruction as their prefer-
ence among the three functions of higher education. Three
Republican apprOpriations committee members considered
instructiOn as the preferred function of higher education.
One Republican legislator on an apprOpriations committee
simply stated, "instruction is first because the trans-
mission Of knowledge is the most important function Of a
university." Another member maintained that "constitution-
ally, instruction is the basic responsibility Of the uni-
versity. However, public service when tied into community
needs, is also very important. The university should not
be an ivory tower in this area which is the current view

Of the general public and I have to represent my people

on this position."

96

Two Democrats on apprOpriations committees also
felt that instruction should receive top priority among
the three functions of higher education. As one legis-
lator stated, "instruction is the prime and total purpose
Of the university."

The final legislator who advocated instruction
over research and public service was a Democratic member
Of an education committee.

Table 18 reveals the fact that over half Of the
members Of the apprOpriations committees voiced a prefer-
ence for instruction.

Two members Of the House education committee gave
preferences for research. The Democrat insisted that the
priority should be given to research because "it is the
search for new knowledge." The Republican chose research
"because we have probably done the best job here." How-
ever, he added, "perhaps we need to turn some of this
around."

One legislator, a Democrat who served on an appro-
priations committee, chose public service as the preferred
area and stated that "more and more universities should
move into this area and subsequently into the greater com-

munity."

97

 

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98

The last legislator, a Republican on an education
committee preferred instruction and public service and
commented, "I see public service as a part of instruction."

The second question in part two asked if each of
the three functions Of higher education is appropriate.

An impressive seventeen members Of the legislature agreed
that instruction, research, and public service are each

appropriate functions Of higher education (See Table 19).

TABLE 19
LEGISLATIVE RESPONSES TO THE QUESTION:

"Is each function appropriate?"

W

 

Response Number of Legislators
Yes 17
NO, only Instruction and Research 1*
Total . 18

 

*Public service apprOpriate only when involved in
educating students.

An education committee Democrat said that although
each function is appropriate, it is not appropriate for
universities to get involved with "research and consulta-

tion with private corporations."

99

Another legislator who considered each Of the
three functions to be apprOpriate elaborated. This person,
a Democratic appropriations committee member, said that,
"universities should not have extension courses to teach
peOple to weave baskets underwater." This same legislator
promoted "practical public service" and suggested that if,
for example, the University Of Wisconsin engaged in public
service for the COpper country, it would make more sense
than if such research were done by southern Michiganders.
This legislator concluded, "public service is a waste of
time if those Offering it can not give a good contribution."

Only one Of the eighteen legislators did not agree
that each Of the three functions Of higher education is
apprOpriate. This legislator, a Democrat on an apprOpri-
ations committee, felt that instruction and research are
apprOpriate. "Public service," according to this person,
"is appropriate only when involved in the educating Of
students."

Legislators did not agree on the question of
whether they thought any of the functions Of higher educa-
tion were being neglected. Seven legislators said "no."
Table 20 demonstrates that over half of the legislators

felt that at least one function was neglected.

100

TABLE 20
LEGISLATIVE RESPONSES TO THE QUESTION:

"Are some functions neglected?"

 

#-

 

 

ReSponse Number Of Legislators
NO 7
Yes, Instruction 3
Yes, Research . 1
Yes, Public Service 3
Yes, Research and 2
Public Service
Yes, Instruction, Research 1
and Public Service
DO not have adequate information 1
to answer
Total 18

 

Four Of the seven legislators who stated that none
Of the functions were being neglected commented further.
A Republican member of an apprOpriations committee commented,
"our research is good and SO is COOperative extension; MSU
is an outstanding example in extension work."

Another legislator, a Democrat who served on an
education committee, maintained that the three functions
are not neglected--"that is, not intentionally. But the
emphasis in education is on the liberal arts and that is

wrong. The orientation should be more toward functional

101

education and not be parasitic in nature. Such education
must be more.public-minded."

Two education committee members, both Republicans,
felt that previously perhaps research received too much
support. One legislator cautioned that "universities must
not over-emphasize research.9 The other legislator stated
that "at times universities have engaged in too much re-
search in the past."

Three legislators were concerned that instruction
was being neglected. A Republican appropriations committee
member stated that with "such tremendous growth in uni-
versities, some Older programs may now be inapprOpriate
and causing the neglect Of more appropriate programs." For
example, the legislator was extremely concerned about the
"money that is being wasted in such programs as free uni-
versities."

Another Republican who served on an education com-
mittee stated that "excellence in the classroom has been
given the wrong priority." A Democratic colleague on the
same education committee agreed that "it's very clear that
the quality Of instruction is a low level priority for
tenure." This legislator stated that "instruction suffers
when students have no voice in faculty promotion and when

political issues become involved in granting tenure . . .

102

A gOOd example is when a faculty member is not promoted
because he is not a gOOd guy."

An education committee member, a Republican, re-
marked that, "I feel we have become lax in the area Of
research."

Two other legislators--another Republican educa-
tion committee member and a Democratic appropriations com—
mittee member--agreed that research is being neglected but
also felt that public service is presently being neglected.

Three Democrats stated that in their Opinion public
service was the only function being neglected on a state-
wide basis. One education committee member remarked that
"public service is generally neglected as a tOOl for solving
human social problems." An appropriations committee member
commented that universities "have neglected public service
tOO much."

"There has been a certain amount Of failure in all
three university functions," stated a Republican member Of
an education committee. The only legislator who reported
neglect in all areas explained that "instruction at larger
schools may be weak because graduate assistants are doing
the instruction and because more emphasis is on research."
This legislator felt that the "smaller schools were very

weak in research." In the area Of public service, this

103

individual was convinced that "there has been a tremendous
neglect; for in the past universities have been hesitant
to devote time to public service."

One legislator said, "I don't think legislators
can answer this." This Republican member Of an apprOpri-
ations committee expressed a concern that legislators do
not have access to certain kinds Of information--eSpecially
in the area Of research--which would enable them to be more
knowledgeable about and more supportive Of good university
programs. The legislator stated:

All the constitution says is that the university
should supply all information on funding, financing,
and accountability of schools. The university has not
addressed itself to the quantity and quality Of re-
search or to what the present or past research is or
on what the future research should be. It is not an
area of legislative attention. It's not a budgetary
thing. The university makes that decision. On
dollars--if we need to have a complete thorough audit,
we hire a consulting firm to analyze the budget.

Maybe this should be done to see if research is worth
financing and to catalogue the research Of what each
university is doing.

If such a listing were available, according to the
legislator, all legislators would be more knowledgeable
about the effective and productive research going on state-
wide.

The final question asked tO the legislators dealt

with the priority that will be given in the future tO each

Of the three traditional functions Of higher education.

104

In reSponse to the question "What changes, if any, do you

see regarding the priority that will be given to each

function in the future?", eight legislators stated that

instruction will be given a higher priority in the future

(See Table 21).

TABLE 21
LEGISLATIVE RESPONSES TO THE QUESTION:
"What changes, if any, do you see regarding

the priority that will be given to each
function in the future?"*

 

 

 

 

 

 

 

 

Higher Priority for Instruction
Higher Priority for Public Service
Higher Priority for Research

Lower Priority for Research

NO way to Predict

ReSponse Number Of Legislators

i

U‘lI—‘I—‘U‘lm

 

*Two legislators made two predictions each.

menting

area Of

the

A Republican State senator was among those com-
On the higher priority that may be expected in the
instruction. This legislator said,

I believe that I can speak for others in
senate and generally they will agree. What

is needed are good rational, responsible heads--
including legislators and university regents and
boards who have a great deal Of autonomy and
leadership in higher education. They Should act
more reSponsibly in the future as to what programs
will be to serve our changing society.

105

A Republican education committee member projected
that universities will "work more directly with students
and will be more truthful in their relationship with
students."

A Republican on an appropriations committee made
comments concerning the immediate future and stated that,
"universities have to take a strong look at what they are
doing and because federal funds are being withdrawn, you'll
see a realignment this year as schools must make choices
Of programs they want to continue."

Among the five Democrats who explained why they
felt that instruction would receive a higher priority in
the future were three education committee members. One
legislator said, "we'll see a substantial change in
packaging and in the develOpment Of different ways of
learning where now faculty rewards are working against
this." This legislator stated a strong belief in pro-
viding incentives for innovativeness and added, "we
[the legislature] Should not penalize universities for
existing programs, but we should make available monies
for innovative programs." The second legislator directed
the priority for instruction to the establishment and
future development Of media centers. The third individual
foresaw the "institutionalization Of the student voice

and greater self-government for faculty and students."

106

The two apprOpriations committee Democrats pro-
vided insight into what one member called the "dollar
changes which necessitate assessing priorities." The
other legislator stated that the "reduction Of the number
Of enrollees will limit the interest and scope Of the
universities to really higher education and they will be-
come junior and senior class institutions."

Five legislators predicted that universities would
be increasing their priority for public service. As a
Democratic member Of an apprOpriations committee commented,
"public pressure is there to do so." A Republican appro-
priations committee member remarked that "continuing educa-
tion will make another student body," but he cautioned that
the emphasis on adult education should not be "just to make
up the student body."

One Of the three education committee Republicans
remarked that "more emphasis will be placed on life-long
education, supporting and working with community colleges,
and making courses relevant to the outside world." An-
other person encouraged university Officials to become
actively involved in the local community. According to
this legislator, "an individual must make himself available
to run for election as a city commissioner, a county

Official, and so forth and should care enough to try to be

107

concerned about his community. Communities need to have
a good town-gown relationship and the university should
be a vital part Of the community."

The final legislator predicting a greater emphasis
on university-Sponsored public service in the future sug-
gested how the university should approach its relation-
ship with the community.

The greatest change will be in public service.

The university is going to have tO recognize the
problems that exist within the communities and the
problem the government--local, state, and federal--
may have in solving some of these problems. Here
is where you have to remove yourself from the uni-
versity setting and become involved in the community
setting to really appreciate the problem as it
really exists and tO look for more Of the basic
grassroots solutions to the problem that our purely
academic or theoretical approach will SO Often
exclude.

Two legislators, Republican members Of education
committees, Offered conflicting projections about the future
role of research on the university campus. One person
stated that "priority must not be placed on research" while
the other legislator advocated the return Of the university
to "dominance Of excellence in research."

Five legislators felt that they were not in a
position to predict what will happen in the future regard-
ing university instruction, research, and public service.

This Opinion was explained by a Republican education com-

mittee member who stated, "I don't know if I'm prepared to

108

answer this. Universities remain pretty autonomous bodies.
There is no way Of knowing this unless we in the legis-
lature develop better ways of making judgments about what
they do."

Table 22 indicates that all five Of the legislators
who predicted that university public service will receive
higher priority in the future were legislators who had
accumulated from three to twelve terms Of legislative

service.

TABLE 22

RESPONSES ACCORDING TO LENGTH OF LEGISLATIVE
SERVICE TO THE QUESTION:

"What changes, if any, do you see regarding
the priority that will be given to each function
in the future?"*

 

 

 

 

HIGHER PRIORITY LOWER PRIORITY
Number Of Public NO way to
Terms Instruction Research Service Research Predict
1-2 4 - - l 2
3-6 2 - 4 - 1
7-12 2 1 l — 2
Totals 8 l 5 l 5

 

*Two legislators made two predictions each.

109

All thirteen legislators who predicted changes
regarding the priority that will be given to each uni-
versity function in the future unanimously agreed that

the anticipated changes were desirable (See Table 23).

TABLE 23
LEGISLATIVE RESPONSES TO THE QUESTION:

"Do you feel that these changes are desirable?"
(Given only to those members providing predictions)

 

 

 

 

ReSponse Number of Legislators
Yes 13

Total 13

Summary

An analysis of the data was presented in Chapter IV.
The reSponses of legislators were tabulated and reported for
each Of the public service items on the Legislative Question-
EEEEE: Differences between committee assignment, length of
legislative service, legislative house, or political party
are presented when such differences appeared on the public
service items. A composite public service score was com-
puted for each legislator, and each composite score was
analyzed according to the number Of legislators belonging

to each committee, legislative house, and political party.

110

Both tabular and qualitative data were provided regarding
legislative comparative responses among the three tra-
ditional functions of higher education. Chapter V includes
the summary, conclusions, implications and recommendations

for future research.

CHAPTER V

SUMMARY, CONCLUSIONS, IMPLICATIONS

AND RECOMMENDATIONS

In this final chapter, the study is summarged,
conclusions are presented, implications are given and

recommendations for future research are reported.

Summary

This study was an attempt to determine how/that
members of the state legislature in Michigan perceived
the public service function of state-supported universities.
Public service, instruction, and research traditionally
have been considered to be the three major functions of
the American state university.

Although the public service concept was invisioned
and supported by Benjamin Franklin and Thomas Jefferson
and institutionalized by the passage of the Morrill Land-
Grant Act of 1862, university-sponsored public service
haéybeen re-vitalized during the early 1970's. The con-
cept of university involvement in serving the public was

directly related to many current university issues.

111

112

The history of the public service function of
universities and the relationships of the university with
the state government were utilized as a background for the
study. A review of the literature rendered little infor-
mation about how state legislators view the public service
function of state-supported universities.

The decision was made to use members of the legis-
lature in the State of Michigan for the research pOpulation.
It was felt that legislators, as elected representatives
of the people, would reflect many of the attitudes of the
general public regarding the involvement of the state-
supported universities in public service. Also, due to the
fact that state-supported universities receive their major
funding from the state legislature, it was believed that
knowledge of the opinions of state legislators on university-
sponsored public service would be beneficial to members of
the legislative and university communities alike.

The research sample was selected from legislators
who were members of one or more of the following committees:
House Appropriations Committee, Senate Appropriations Com-
mittee, House Education Committee, Senate Education Com-
mittee, and House Committee on Colleges and Universities.

The research instrument, a Legislative Question-

naire, was developed by the researcher and was given to the

 

_/\

113

members of the research sample via a personal interview.
Part one of the Legislativeyguestionnaire contained twenty
higher education items which required the respondent to
answer "agree," "disagree" or "undecided." Part two of
the questionnaire consisted of two open-ended questions--
the first question was about higher education in Michigan
and the second question related to the appropriateness

and future priority of the three traditional functions of
higher education.

For purposes of data analysis, legislative responses
to the public service items in part one of the question-
naire were tabulated according to legislative house, politi-
cal party, length of legislative service, and committee
assignment. A composite public service score was determined
for each legislator which indicated the total number of
supportive reSponses given to the public service items on
the questionnaire. ReSponses to the open-ended questions
on the three functions of higher education were reported
and provided additional insight into how the public service
function of universities is viewed by state legislators.

A detailed presentation of the research data is included

in Chapter IV.

 

| I.) 11

114

Conclusions

 

As a result of the findings of this study, the
following major conclusions were reached. Legislators
who served on the education and appropriations committees

felt that:

l. The public service function of universities
is an appropriate function of state-supported

universities.

Seventeen of the legislators agreed that public
service is an appropriate university function although one
legislator felt that public service is appropriate only
when it is involved in educating students. Likewise, over
80 percent of the legislators (100% of the education com-
mittee members and 100% of the Republicans) agreed that it
is appropriate for universities to serve citizens directly
through clinics, extension programs, consultation, and the

establishment of necessary facilities and services.

2. Universities should increase the amount
of time Spent on university-Sponsored

public services.

The majority of the legislators agreed that uni-

versities should devote more time and energy to public

115

service. .Education committee members were more supportive
of the need to increase the amount of time devoted to
public service activities than were members of appropri-
ations committees. Legislators who were serving their
first or second term unanimously supported the need to
increase the time Spent on university-sponsored public
service, while legislators with more than two terms of
seniority increasingly disagreed with the appropriateness
of spending more time on public service. It was noted that
five legislators predicted that universities would give

public service a higher priority in the future.

3. Universities should expand their

public service reSponsibilities.

The appropriateness of adapting public service
activities to accomodate the changing needs of the citizens
was supported by almost 75 percent of the legislators
sampled. Legislators felt that universities must create
new and innovative public service projects that will re-

spond to demonstrated community needs.

4. Many university-Sponsored public services
should be provided in the local communities
as opposed to being located on the university

campuses.

116

Although acknowledging that certain public
services can more appropriately be housed on university
campuses, legislators were in strong agreement (only one
person disagreed) that many university—sponsored public
services should be located in the communities which are
to be served as Opposed to being housed on the university

campuses.

5. Supplementary state and local funding
should be made available to universities
that increase the number of significant

public service activities offered.

Two-thirds of the legislators maintained that
additional funding should be available to universities
that assume a greater share of the state's responsibility
for public service. Legislators who had served from one
to six terms generally consented that as universities
assume a greater share of the state's responsibility for
public service, then additional state and local funding
should be made available; whereas, legislators who had
served more than six terms, tended to disagree with this
issue. The education committee members and the Republican
members of both committees were highly supportive of
additional state and local funding for the universities

which enlarge their public service programs.

117

6. Universities should take an active
role in helping America to solve her

social and economic problems.

Legislators strongly agreed with the apprOpri-
ateness of direct university involvement in finding
solutions to social and economic problems in America.
(The only legislator who disagreed believed that the role
of the university should be to stimulate students to
actively work toward the solution of societal problems.)

It should be noted that while most of the legis-
lators endorsed the practice of university involvement in
helping to solve the social and economic problems in
America, only two-thirds of the legislators considered

the university to be a model for American society.

7. An appropriate extension of the public
service function of universities is to
provide the opportunity for life-long

education.

The apprOpriateness of life-long learning was

highly endorsed by the legislators in this study.

118

8. A public service option should be
incorporated into the university
procedures for faculty promotion,
assessment and professional advance-

ment.

Legislators strongly agreed that as an alternative
to a research requirement, a university faculty member
should be given a public service option such as: consulting
or advising which is hirectly related to his or her pro-
fessional field and which is designed to help in solving

problems.

Implicatio'nis‘of the Study

1. Universities must engage in realistic planning
in the area of public service. Such planning involves
more than determining the appropriate role of public service.
Such planning involves determining how public service can
compliment and enhance the research and classroom activities
of university faculty and staff members. Duplication of
programs must be avoided in an era of program budgeting
and fiscal accountability. In order to respond wisely and
effectively to the need for public service and, at the same
time, to utilize university time and resources more ef-
ficiently, joint university-community planning should be

initiated.

119

2. Just how relevant the university can become
to the taxpayers of the state will be determined jointly
by the general legislative support given for university
public service and by the priority given to public service
by the university. Information regarding legislative
views on the public service function of universities will
definitely be an asset to university administrators as
they define and communicate the role of public service
on their individual campuses. Serving the changing needs
of the public is the mutual responsibility assumed by the
legislature and the state-supported university as the
university becomes more creative, innovative, and more

relevant in the eyes of the public.

3. Universities should not assume that they must
accept the complete responsibility for public service
activities within the state. Universities must learn to
access the needs of a project, determine who is best
qualified to handle the project, and’ta’make referrals to

federal or local government agencies when appropriate.

4. Increased and more effective ways of com-
municating the on-going activities of the universities
must be developed in order to promote better understand-

ing between the university and the legislature. University

120

presidents and other key administrators must seize every
opportunity to maximize the effectiveness of the communica-
tion channels between the university and the legislature.
Likewise, legislators must take the time to meet
with university officials. Perhaps the expansion of joint
conferences or workshops between university officials and
legislators would increase the opportunity for effective

communication between the legislature and the university.

5. Legislators are held accountable for the
decisions they make regarding the financing of higher
education and therefore they must have access to accurate
information concerning the university upon which to base
their decisions. University staff members who work in the
area of legislative relations should be carefully selected.
These peOple should have skills in public relations, uni-
versity administration, governmental procedures and com-
munication. Just as legislators must be knowledgeable
and appreciative of higher education, it is imperative
that university officials understand and appreciate the
legislative process.

Recommendations for
Future Researchi

A number of questions were raised by this study

which could serve as a basis for future research tOpics.

121

In order to supplement the findings of this study, re-

search should be conducted in the following areas:

1.

Further research should be conducted to

determine how the following groups view the public service

function of state-supported universities.

(a)

(b)

(C)

(d)

(e)

Legislators in the Michigan House of
Representatives and State Senate who
are not members of an education or

appropriations committee.

State officials in Michigan, such as
personnel from the state agencies and

the governor's office (additional examples
would include officials listed by Eulau
and Quinley in State Officials and Higher

Education.)

 

Local government officials and community

leaders in Michigan cities and counties.

Members of the education and apprOpriations

committees of the U.S. Senate and the Congress.

Presidents and other top-level administrators

in universities in Michigan.

122

2. Additional research is required to determine
if legislative,verbal support for university-sponsored
public service corresponds with legislative sponsorship
of activities which indicate a commitment to university-
sponsored public service. (For example, the introduction

of legislation favoring public service activities.)

3. A study should be conducted to determine if
the public service function should be expanded to include
the concept of community development. Data should be
obtained from university administrators, state legislators,

and local government officials.

FOOTNOTES

FOOTNOTES

1. Thomas H. Eliot, "Toward an Understanding of Public
School Politics," The American Political Science Review,
Vol. LIII, No. 4 (December, 1959), pp.*I035436.

2. LeRoy Craig Ferguson, How State Legislators View
the Problem of Sghool Needs (U.S. Office ofEEucation,
HEW COOperative Research Project No. 532, 8166), 1960.

3. Keith Goldhammer, "The Politics of Education,"
Educational Administration Quarterly (Spring, 1965), p. 63.

4. G. Theodore Mitau, State and Localggvernment:
Politics and Processes (New York: Charles Scribner‘s Sons,
1965,] E: 30

5. Sterlin v. Regents of the University of Michigan
(110 Mic gan 9), 1896.

6. Mitau, State and Local Government, p. 440.

7. Clark Kerr, "Policy Concerns for the Future,"
The Expanded Campus, ed. by Dyckman W. Vermilye (San
Francisco: Jossey-Bass Inc. Publishers, 1972), p. 3.

8. Richard E. Peterson, The Crisis of Pur ose:
Definition and Use of InstitutionaI GoaIs, Report 5
(Washington, D.C.: Eric Clearing on HigBer Education,
1970), p. 3.

 

9. Public and Local Acts of the Legislature of the
State of Michigan, p. 248.

10. Carnegie Commission, 1971, The Life-Long University
(1973), p. 11.

11. James A. Perkins, "The Dynamics of University
Growth," Higher Education in the Revolutionary Decades,
ed. by Lewis Mayhew (Berkeley: McCutchan Publishing
Corporation, 1967), p. 119.

12. Ibid., p. 116.
13. Ibid.
14. James A. Perkins, The University in Transition

 

(Princeton, New Jersey: Princeton University Press, I966),
p. 49.

123

124

15. Carnegie Commission, The, The Capitol and the Campus--

 

State Respongibilityfor Post Secon aty EducationIYNew Yofk:
McGraw HilI Book Company, 1971), p. 34.

16. "Continuing Education and Community Service Programs,"
Com act, Vol. 4, No. 5 (Educational Commission of the States,
1975), p. 55.

 

17. Donald Kline, Le islative Decision Making in Hi her
Education: How to Get tfie Facts, ed. by Robert H. KroepscE
Tfioulder, Colorado: Western Interstate Commission for
Higher Education, 1972), p. 55.

 

18. Richard I. Miller, Evaluating Faculty Performance
(San Francisco: Jossey-Bass Inc. Publishers, 1972), p. 64.

 

 

 

 

19. Ibid.

20. Perkins, The University in Transition, p. 48.

21. Kenneth H. Ashworth, Etholars and Statesmen (San
Francisco: Jossey-Bass Inc. Publishers, 1972), p. 95.

22. Clark Kerr, Uses of the University (Cambridge:
Harvard University Press, 1963), p. 115.

23. Perkins, The University in Transition, p. 15.

24. Earl F. Cheit, The New Depression in Higher Education

 

(New York: McGraw Hill Book Company, 1971), p. lIUTi

25. Role of the State Supported Universitytg Continuing
Education, The, Proceedings for the Centennial Symposium.
Addresses by: James C. Worthy, Mark Starr, J. L. Morrill,
and Henry Steele Commager (East Lansing: Kellogg Center for
Continuing Education, February 25-26, 1955), p. 13.

 

26. James Lewis Morrill, The Ongoing Stgte University
(Minneapolis: The University of Minnesota Press,’1960),
p. 30.

 

27. Ashworth, Scholars and Statesmen, pp. 96-97.
28. Ibid., p. 98.
29. President's Commission on Higher Education, The,

Higher Education foriAmerican Democracy (Washington:
Government Printing Office, 1947), p. 49.

 

30.
31.
32.

33.

125

Perkins, The University in Transition, p. 47.
Kerr, Uses of the University, p. 117.
Kline, Legislative Decision Making, p. 56.

Perkins, Higher Education in the Revolutionary

Decades, p. 116.

34.

"Continuing Education and Community Service

Programs," p. 56.

35.
36.
37.
38.

39.

Morrill, The Ongoing State University, p. 7.

 

Ibid., p. 18.
Ibid., p. 17.
Ibid., p. 27.

Edward Danforth Eddy, Jr., Colle es for Our Land

and Time (New York: Harper & Brothers, 567) p. 21.

40.
41.
42.
43.
44.
45.

46.

(Urbana:

47.
48.
49.
50.
51.

52.

Morrill, The Ongoing State University, p. 7.
$1333., p. 14.

22$33, p. 7.

I§£Q., p. 12.

EEESII p. 32.

EEEER' p. 87.

Allan Nevins, The State Universities and Democracy

University of_IIIinoisfiPress, 1962), p. 19.
1213351., p. 21.
£2£Q., p. 1.
2219!! p. 14.
IE£Q., p. 2.
5222,, pp. 72-73.

Ibid., p. 78.

126

 

53. EgidL, pp. 82-83.

54. EEEQLI p. 102.

55. 32311;, p. vi.

56. Eddy, Colleges for Our Land and Time, p. 23.
57. EEEQLJ p. 27.

58. gbid;, p. 213.

59. 2222;! p. 244.

60. Itidt, p. 247.

61. £2i§;, p. 249.

62. IgidL, p. 271.

63. EEiQL, p. 273.

64. Committee on the Centennial of the University of

Illinois, An Early View of the Land- -Grant Colleges--
Convention of Friends of Agricultural Education in 1871,
ed. by Richard’A. HatCh'(Urbana: University of Illinois
Press, 1967), p. 137.

65. Alfred Charles True, A Histor of A ricultural
Extension Work in the United States I785- I923 (Washington,
D.C.: United‘StatesJ Government Printing Office, 1928).

 

 

66. "Continuing Education and Community Service Programs,"
p. 55.

67. Kerr, Uses of the University, p. 115.

68. Bert E. Swanson, and ChristOpher Lindley, "College

and the Community: The Reciprocity of Change," Adult
Leadership, Vol. 19, No. 2 (1970), p. 45.

 

69. Kerr, Uses of the University, p. 115.
70. Douglas M. Knight, The Federal Government and

Higher Education (Englewood Cliffs, Newj Jersey: Prentice-
Ha Inc., ), p. 196.

71. "Continuing Education and Community Service Programs,
p. 55.

127

 

 

72. Ibid.

73. Knight, Federal Government and Higher Education,
p. 17.

74. "Continuing Education and Community Service

Programs," p. 55.

75. M. M. Chambers, The Campu§_and the Peo le, (Dan-
ville, Illinois: The Interstate Printers and P lishers,
Inc., 1960), p. 69.

 

 

 

76. Earl J. McGrath, Should Sttdents Share the Power?
(Philadelphia: Temple University Press,*1970), p. 3.

77. Kerr, The Expanded Campus, p. 3.

78. D. Parker Young, Hi her Education: The Law and
Student Protest (Athens: The Institute of Higher Educa-

 

tion, Universify of Georgia, June, 1970), p. 26.

 

 

 

 

79. Kerr, The Expanded Campus, p. 3.

80. McGrath, Should Students Share the Power?, p. 3.
81. Ibid.

82.7 Carnegie Commission, The Capitol and the Campus,
p. . ‘

83. Igig., p. 8.

84. Richard L. Rosenberg, "Higher Education: The

Public Interest," Value Change and Pgwer Conflict
(Berkeley: Center for Research andiDevelopment in Higher
Education--University of California, 1969), p. 43.

85. Kerr, Uses of the University, pp. 116-117.

 

86. Committee on Government and Higher Education, The,
The Efficiency of Freedom (Baltimore: The Johns Hopkins
Press, 1959), p. 44.

 

87. Knight, Federal Government and Higher Education,
p. 12.
88. Abbie Ziffern, "The Urban Agent Program of the

Urban Studies Center," Adult Leadership, Vol. 18, No. 4
(1969), p. 123.

89. Committee on Government and Higher Education,
Efficiency of Freedom, p. 23.

128

90. Constitution of the State of Michigan of 1963,
Sec. 51, Article IV.

91. G. Theodore Mitau, State and Local Government:
Politics and Processes (New York: Charles ScribnerTs
Sans, 1966), p. 440.

 

 

92. Ibid.
93. Ibid.
94. Samuel B. Gould, "The University and State Govern-

 

ment: Fears and Realities," Cam us and Capitol--Hi her
Education and the State, ed. By W. John Minter (Boulder,
Colorado: Western Interstate Commission for Higher Educa-
tion, 1966), p. 15.

 

95. Mitau, State and Local Government, p. 458.

 

96. Malcolm Moos, and Francis E. Rourke, The Campus
and the State (Baltimore: The Johns Hopkins Press, 1959),
p. 227.

 

97. Sterling v. Regents of the University of Michigan.

98. M. M. Chambers, The Colleges and the Courts Since
1950 (Danville, Illinois: The Interstate Printers and
Phhlishers, Inc., 1964), p. 147.

 

99. Moos, The Campus and the State, p. 327.

100. _I_hi_d_._, p. 328.

101. thidtl p. 333.

102. Leonard E. Goodall, James B. Holderman and James D.

Nowlan, "Legislature and University: The Uneasy Partern-
ship," Educational Record, Vol. 52, No. l (1971), p. 40.

 

 

 

 

103. Swanson, Adult Leadership.

104. Kerr, Uses of the University,

105. Goodall, Educational Record.

106. Kline, Legislative Decision Making, p. 31.

107. Committee on Government and Higher Education, Th3

Efficiency_of Freedom, pp. v-vi.

 

129

 

108. ItidL, p. 23.

109. Moos, The Campus and the State, pp. 375—76.
110. $2394! pp. 27-28.

111. Heinz Eulau, Harold Quinley and David D. Henry,

State Officials and Hi her Education (New York: McGraw-
Hill BoOk Company, 197 , p. 36.

 

 

112. ItidL, p. 443.

113. 5239;! p. 189.

114. 2239;! p. 191.

115. Eulau and Quinley, Carnegie Commission Study,
Foreward.

116. lhidtj p. 167.

117. Deobold B. Van Dalen, Understanding Educational

 

Research (New York: McGraw-Hill Book Company, 1962), p. 303.
118. Ibid., p. 303.

119. Ibid., p. 302.

APPENDICES

APPENDIX A
THE LEGISLATIVE QUESTIONNAIRE AND OTHER

MATERIAL PRESENTED TO LEGISLATORS
BY THE RESEARCHER

130

131

514 W Owen Graduate Center
East Lansing, Michigan 48823

Dear Senator

Recently, Mr. Jack Breslin, Executive Vice-President of
Michigan State University sent you a letter explaining my
doctoral research project and my desire for an interview.

Your name has been randomly selected from a group of
legislative educational leaders to be included in this
study. The study will focus on the five higher education-
related legislative committees in the Michigan legislature:
House Appropriations Committee, Senate Appropriations
Committee, House Education Committee, Senate Education
Committee, and House Committee on Colleges and
Universities.

By virtue of your appointment to one or more of these key
committees, you are certainly considered to be a legisla-
tive educational leader. Thus, your priorities and
opinions as an educational leader are more important.

As you know, traditionally the three main functions of
higher education are instruction, research, and public
service. This study deals primarily with the public
service function, but questions will also be asked con-
cerning the research and instructional functions of
state-supported universities in Michigan.

During the next few days I shall be calling you to schedule
a time for the interview. The interview will not take more
than one hour of your time.

You can be assured that your complete anonymity will be
observed and that the identity of all legislators in this
study will be treated in confidential manner.

Let me thank you in advance for your cooperation and time.
I look forward to talking with you soon concerning the
functions of higher education in Michigan.

Sincerely,

Marylee Davis
Ph. Dc Candidate
Higher Education Administration

 

132

INTRODUCTION TO THE INTERVIEW SCHEDULE

Before I begin, I would like to explain that the
purpose of this project is to learn how that legislative
educational leaders, such as yourself, perceive the public
service function of state-supported universities in
Michigan. The information and opinions that you give will
be tabulated along with the material from other legislators
in the sample. No names will be used in reporting the data
and you may be assured that your complete anonymity will be
~ observed.

The items on the questionnaire deal primarily with
the functions of state-supported universities in Michigan.
In order to be certain that you and I are defining the
three traditional functions of higher education in the same
manner, I am offering the following definitions:

1. INSTRUCTION...the transmission of knowledge.

Activities included are those which relate to the

preparation and presentation of classroom lectures,
discussion groups, and academic advising.

 

2. RESEARCH...the search for new knowledge. Included
are activities, both laboratory and non-laboratory,
which relate to a research project, i.e. research
design, experimentation, and write-up.

 

3. PUBLIC SERVICE...the application of knowledge.
Activities which are designed primarily to benefit
the greater society. Both departmental (faculty)
public service activities--such as: consultation,
urban counseling, agricultural extention, etc.
and institutional public service--such as: radio
broadcasting, alumni relations, university publica-
tions and continuing education are included.

 

133

I would like to record the second part of our
discussion as this section is open-ended and I want the
information to be completely accurate. After transcribing
the data from the recording tonight, the information that
you will give today will be completely erased. May we

record?

134

DEFINITIONS OF THE THREE TRADITIONAL FUNCTIONS
OF HIGHER EDUCATION TO BE USED IN ANSWERING
QUESTIONS RELATING TO THE FUNCTIONS OF
STATE-SUPPORTED UNIVERSITIES

IN MICHIGAN

INSTRUCTION...the transmission of knowledge.

 

Activities included are those which relate to the
preparation and presentation of classroom lectures,
discussion groups, and academic advising.

RESEARCH...the search for new knowledge. Included are

 

activities, both laboratory and non-laboratory, which
relate to a research project, i.e. research design,
experimentation, and write-up.

PUBLIC SERVICE...the application of knowledge.
Activities which are designed primarily to benefit the
greater society. Both departmental (faculty) public
service activities--such as: consultation, urban
counseling, agricultural extention, etc. and institu-
tional public service--such as: radio broadcasting,
alumni relations, university publications and

continuing education are included.

135

LEGISLATIVE QUESTIONNAIRE

DIRECTIONS:'
After reading each statement, respond by stating whether
you AGREE, DISAGREE or are UNDECIDED.

1.

2.

10.

11.

Every person with the ability and the desire should
be given the opportunity for a college education.

Admission to a state university is a right rather than
a privilege for an in—state resident.

Universities should adopt procedures for admitting
disadvantaged students who seem to have potential
even when such students do not meet the regular
admission requirements.

It is appropriate for universities to serve citizens

directly through clinics, extension programs, consul-
tation, and the establishment of necessary facilities
and services.

Community colleges, rather than the state univer-
sities, can best meet the needs of most culturally
disadvantaged students.

Universities should devote more time and energy to
public service.

Most university academic programs are relevant to the
needs of our changing society.

It is appropriate today to assume that the main
function of state universities is to preserve our
cultural heritage.

The most appropriate function of a university is the
quest for new knowledge.

If the university is a model for American society, it
should take an active role in helping America to
solve her social and economic problems.

University faculty members should have the right to
express their opinions in the classroom on any issue.

136

AGREE, DISAGREE OR UNDECIDED

12.

13.

14.

15.

16.

17.

18.

19.

20.

Universities should strive to produce a student who
is committed to using his knowledge to the betterment
of society.

The university should expand the public services pro-
vided for citizens within the state.

An appropriate extension of the public service
function of universities is to provide the opportunity
for life-long education.

Many university-sponsored public services, such as:
minority counseling programs, drug and crisis centers,
and vocational development centers can more appropri-
ately be located in the communities which will be
served as opposed to being housed on the university
campuses.

If universities assume a greater share of the state's
responsibility for public service, then additional
state and local funds should be allocated for such
services.

University faculty should be rewarded primarily for
demonstrated excellence in the classroom and secondly
for research and publications.

As an alternative to a research requirement, a
university faculty member should be given a public
service Option such as: consulting or advising
which is directly related to his or her professional
field and which is designed to help in solving
problems.

Today it is a waste of the university's time and the
taxpayers' dollars to support basic research--that
is research for which there is no immediate applica-
tion.

It is appropriate that our state-supported univer—
sities have different emphases regarding the three
traditional functions of higher education.

137

PART-TWO--OPEN ENDED SECTION OF INTERVIEW

Now let me ask a very broad question: How do you feel
things in higher education have been going in Michigan
over the past few years? (As you see it, what are

some of the major problems?)

Higher education has many functions--instruction,
research and public service.

Do you have any preferences regarding these functions?

Is each function appropriate?

Are some functions neglected?

What changes, if any, do you see regarding the priority

that will be given to each function in the future?

 

APPENDIX B

LEGISLATIVE RESPONSES TO THE TWENTY ITEMS ON
PART ONE OF THE LEGISLATIVE QUESTIONNAIRE

138

139

TOTAL RESPONSES TO LEGISLATIVE QUESTIONNAIRE
Every person with the ability and the desire should
be given the opportunity for a college education.
16 agree, 2 disagree, 0 undecided

Admission to a state university is a right rather
than a privilege for an in-state resident.

5 agree, l3 disagree, 0 undecided

Universities should adopt procedures for admitting
disadvantaged students who seem to have potential
even when such students do not meet the regular
admission requirements.

12 agree, 4 disagree, 2 undecided

It is appropriate for universities to serve citizens
directly through clinics, extension programs, consul-
tation, and the establishment of necessary facilities
and services.

15 agree, 2 disagree, 1 undecided

Community colleges, rather than the state univer-
sities, can best meet the needs of most culturally
disadvantaged students.

12 agree, 4 disagree, 2 undecided

Universities should devote more time and energy to
public service.

11 agree, 4 disagree, 3 undecided

Most university academic programs are relevant to the
needs of our changing society.

7 agree, 9 disagree, 2 undecided.

It is apprOpriate today to assume that the main
function of state universities is to preserve our
cultural heritage.

1 agree, l6 disagree, 1 undecided

10.

11.

12.

13.

14.

15.

16.

140

The most appropriate function of a university is the
quest for new knowledge.

7 agree, 10 disagree, 1 undecided

If the university is a model for American society, it
should take an active role in helping America to
solve her social and economic problems.

12 agree, 6 disagree, 0 undecided

University faculty members should have the right to
eXpress their Opinions in the classroom on any issue.

12 agree, 6 disagree, 0 undecided

Universities should strive to produce a student who
is committed to using his knowledge to the better-
ment of society.

18 agree, 0 disagree, 0 undecided

The university should expand the public services
provided for citizens within the state.

13 agree, 2 disagree, 3 undecided

An appropriate extension of the public service
function of universities is to provide the
Opportunity for life-long education.

17 agree, 1 disagree, 0 undecided

Many university—sponsored public services, such as:
minority counseling programs, drug and crisis
centers, and vocational development centers can more
appropriately be located in the communities which
will be served as opposed to being housed on the
university campuses.

17 agree, 1 disagree, 0 undecided

If universities assume a greater share of the state's
responsibility for public service, then additional
state and local funds should be allocated for such
services.

12 agree, 6 disagree, 0 undecided

 

17.

18.

19.

20.

141

University faculty should be rewarded primarily for
demonstrated excellence in the classroom and
secondly for research and publications.

13 agree, 5 disagree, 0 undecided

As an alternative to a research requirement, a
university faculty member should be given a public
service option such as: consulting or advising
which is directly related to his or her professional
field and which is designed to help in solving
problems.

16 agree, 1 disagree, 1 undecided

Today it is a waste of the university's time and the
taxpayers' dollars to support basic research-~that
is research for which there is no immediate applica-
tion.

2 agree, l6 disagree, 0 undecided

It is appropriate that our state-supported univer-
sities have different emphases regarding the three
traditional functions of higher education.

16 agree, 2 disagree, 0 undecided

142

Questionnaire Responses According to Percentage

 

 

Question .

Number Agree Disagree Undecided
1 89.0 11.0 0.0
2 28.0 72.0 0.0
3 67.0 22.0 11.0
4 83.0 11.0 6.0
5 67.0 22.0 11.0
6 61.0 22.0 17.0
7 39.0 50.0 11.0
8 5.5 89.0 5.5
9 39.0 55.5 5.5

10 67.0 33.0 0.0
11 67.0 33.0 0.0
12 100.0 0.0 0.0
13 72.0 11.0 17.0
14 94.0 6.0 0.0
15 94.0 6.0 0.0
16 67.0 33.0 0.0
17 72.0 28.0 0.0
18 89.0 5.5 5.5
19 11.0 89.0 0.0
20 89.0 11.0 0.0

 

 

143

RESPONSES TO LEGISLATIVE QUESTIONNAIRE ACCORDING
TO POLITICAL PARTY, LEGISLATIVE HOUSE, AND
COMMITTEE ASSIGNMENT

W

 

 

 

 

 

 

 

 

 

 

 

DEMOCRATS REPUBLICANS
House Senate House Senate
a
C: o o o o
O O ' O 0 O 0 O o
. a .. 2 2:. 2 a 3 a 2
QueStlon g} & '0 O. 'U a. rd 0. to
Number on 4: m st: rd ‘1: m 4: m Totals
Ag 4 3 - - 1 4 2 2 16
1 Dis - - l l - - - - 2
Un - - - - - - - - 0
Ag 3 - - - - 1 - 1 5
2 Dis 1 3 1 1 l 3 2 1 13
Un - - - - - - - - 0
Ag 3 3 - - l 2 1 2 12
3 Dis 1 - 1 l - l - - 4
Un - - - - - 1 l — 2
Ag 2 - l l 4 2 2 15
4 Dis 1 - 1 - - - - - 2
Un l - - - - - - — 1
Ag 2 2 l l l 2 12
5 Dis 1 - - - - l - 4
Un l 1 - - - - - - 2
Ag 2 - 1 - 3 1 l 11
6 Dis 1 l - 1 - 1 - 4
Un 1 - - - - l - l 3
Ag 3 - — - l l 1 l 7
7 Dis 1 2 1 - — 3 l l 9
Un — l - l - - - - 2
Ag - - - - - l - - l
8 Dis 4 2 l 1 l 2 2 16
Un - l - - - - - - 1
Ag 1 1 l - - 3 - 1 7
9 Dis 3 2 - 1 1 - 2 l 10
Un - - - - - l - - 1

 

144

 

 

 

 

 

 

 

 

 

 

 

 

 

DEMOCRATS REPUBLICANS
House Senate House Senate
m
U)
c: o o o c
O O ' O ' O 0 O 0
CL A o H o H o H 0
Question 8 8 8 8 8 8 8 8 8
Number 0‘ 41 W <1 ‘9 ‘3 m ‘3 m Totals
Ag 2 3 - - 1 4 1 l 12
10 Dis 2 - l l — - 1 1 6
Un - - - - - - - - 0
Ag 1 2 — l 1 3 2 2 12
11 Dis 3 l l - - 1 - - 6
Un - - - - - - - - 0
Ag 3 l l l 2 2 18
12 Dis - - - - - - - - 0
Un - - - - - - - - 0
Ag 3 3 - - l 3 2 1 13
13 Dis - - 1 1 - - - - 2
Un 1 - - - - l - 1 3
Ag ’4 3 1 1 1 4 1 2 17
14 Dis - - - - - - l - 1
Un- - - - - - - - - 0
Ag 3 3 l l 1 4 2 2 17
15 Dis 1 - - - - - - - 1
Un - - - - - - - — 0
Ag 1 3 - — l 4 l 2 12
16 Dis 3 - l 1 - - 1 - 6
Un - - - - - - - - 0
Ag 2 3 1 l l 2 l 2 13
17 Dis 2 - - - - 2 l - 5
Un - - - - - - - - 0
Ag 2 3 l l l 4 2 2 16
18 Dis 1 - - - — - - - 1
Un l - - - - - - - 1
Ag - - 1 - — - - 1 2
l9 Dis 4 3 - l 1 4 2 l 16
Un — - - - - - - - 0
Ag 4 2 '1 1 1 3 2 2 16
20 Dis - 1 - — - 1 - - 2
Un - - - - - - - - 0

 

145

RESPONSES ACCORDING TO LENGTH OF
LEGISLATIVE SERVICE

 

 

 

 

 

Question 1—2 Terms 3-6 Terms 7-12 Terms

 

 

 

 

Number A§T_—Dis. Un. A§T__Dis. Un. A§T_—Dis. Un.
1 5 1 - 7 - - 4 1 -
2 2 4 - 3 4 - 2 3 -
3 5 1 - 5 - 2 2 3 -
4 5 1 - 7 - - 3 1 1
5 4 1 1 5 2 0 3 l 1
6 6 - - 4 1 2 2 2 1
7 2 3 1 3 3 1 2 3 -
8 - 5 l 1 6 - - 5 -
9 1 5 - 3 3 1 3 2 -

10 4 2 - 5 2 - 3 2 -
11 6 - - 6 l - - 5 -
12 6 - - 7 - - 5 - -
13 5 l - 5 - 2 3 1 1
14 6 - - 6 1 - 4 l -
15 6 - - 7 - - 4 1 -
16 5 l - 6 1 - 2 3 -
17 5 1 - 4 3 - 4 1 -
18 5 1 - 7 - - 4 1 -
19 1 5 - - 7 - 1 4 -

20 6 - - 6 1 - 5 - -

 

146

RESPONSES ACCORDING TO COMMITTEE
ASSIGNMENT AND POLITICAL PARTY

EDUCATION COMMITTEE* APPROPRIATIONS COMMITTEE

 

 

Question 7 Republican Democrat Republican Democrat

Number Ag Dis Un Ag Dis Un Ag Dis Un Ag Dis Un

 

1 6 - - 3 1 - 3 - - 4 1 -
2 2 4 - - 4 — — 3 - 3 2 -
3 4 1 1 3 1 - 2 - 1 3 2 -
4 6 - - 4 - - 3 - - 2 2 1
5 3 3 - 3 - 1 3 - - 3 1 1
6 4 - 2 4 - - 1 2 - 2 2 1
7 2 4 - - 2 2 2 1 - 3 2 -
8 1 5 - - 3 1 - 3 - - 5 -
9 4 1 1 1 3 - - 3 - 2 3 -
10 5 l - 3 l - 2 1 - 2 3 -
11 5 1 - 3 1 - 3 - - 1 4 -
12 6 - - 4 - - 3 - - 5 - -
13 4 - 2 3 1 - 3 - - 3 1 1
14 6 - - 4 - - 2 1 - 5 - -
15 6 - - 4 - - 3 - - 4 1 -
16 6 - - 3 1 - 2 1 - 1 4 -
17 4 2 - 4 - - 2 1 - 3 2 -
18 6 - - 4 - - 3 - - 3 1 1
19 1 - 4 - - 3 - - l 4 -
20 5 - 3 1 - 3 - - 5 - -

 

*Education Committee-~Senate Education and House Education
Committees and the House College and
Universities Committee.

RESPONSES ACCORDING TO LEGISLATIVE HOUSE--

 

—.-
J

SENATE

 

147

SENTATE OR HOUSE

J
4‘

HOUSE

(1

 

Question

 

Number Agree Disagee Undecided Agree Disagree Undecided

 

1
2

10
11
12
13
14
15
16
17
18
19

20

4

1

2

5

12
4
9

10

10

12

10

11

11

10

10

8

12

 

APPENDIX C
COMPOSITION OF THE SAMPLE BY POLITICAL PARTY,

COMMITTEE ASSIGNMENT, AND LENGTH OF
LEGISLATIVE SERVICE

148

149

COMPOSITION OF POPULATION AND SAMPLE

 

 

 

 

 

 

ACTUAL SAMPLE

Dem. Rep. Total Dem. Rep. Total

Appro. 11 6 l7 4 l 5

HOUSE Educ. 14 10 24 3 4 7
Total 25 16 41 7 5 12

Appro. 4 6 10 l 2 3

SENATE Educ. 2 3 5 l 2 3
Total 6 9 15 2 4 6

 

150

Number of Legislative Terms of Sample

 

 

Terms Democrats Republicans Total
1—2 4 2 6
3-6 1 6 7
7-12 4 l 5

 

APPENDIX D

CATEGORIZATION OF ITEMS IN PART ONE
OF THE QUESTIONNAIRE

151

152

 

 

xxxx om

xxxx ma

xxxx ma

xxxx NH

XXXN ma
xxxx ma
xxxx vH
xxxx ma
xxxx NH

xxxx HH
xxxx OH

xxxx m

xxxx m

xxxx 5

xxxx m

xxxx m

xxxx v

xxxx m

xxxx m

xxxx H

musmflm mocm>wamm mGOHmmwfidd .>HaD mo doauocsm Hmnfisz
muasomm Emumoum moosuocom moa>umm cowummso
Honuo baandm

 

 

mcoflummoo mo coaumufluommumu

APPENDIX E

CALCULATION OF THE RELIABILITY FACTOR

153

154

CALCULATION OF THE RELIABILITY FACTOR*
(FOR THE 8 PUBLIC SERVICE ITEMS IN

PART ONE OF THE QUESTIONNAIRE)
Kuder Richardson Formula 20

_ 2
rtt- fir; St 293

 

Where:

8)

# of items (In this study, n

total variance of scores

(D
II

(In this study, st2 = 3.039)

% of time an item was scored as l

'0
ll

q = % of time an item was scored as 0
(In this study, pq = 1.225)

rtt = 0.68

*Although the present study was a descriptive
study--not a statistical study--the reliability factor has
been calculated for the interested reader.

APPENDIX F
VOTING RECORDS ON SENATE HIGHER EDUCATION

APPROPRIATIONS BILLS FOR LEGISLATORS IN
SAMPLE FOR 1970, 1971, 1972, AND 1973

155

156

Senate Bill Number 1179, 1970

 

 

Yeas Nays
Appropriations Democrats 4 0
Appropriations Republicans l 1
Education Democrats 1 1
Education Republicans 3 2
Total 9 4

 

Senate Bill Number 928, 1971

 

 

 

_—
Yeas Nays
Appropriations Democrats 4 0
Appropriations Republicans 2 1
Education Democrats 2 0
Education Republicans 2 2

Total 10 3

 

157

Senate Bill Number 1141, 1972

 

 

Yeas Nays
Appropriations Democrats 3 l
ApprOpriations Republicans l 2
Education Democrats 1 0
Education Republicans 4 1
Total 9 4

 

Senate Bill Number 143, 1973

 

 

Yeas Nays
ApprOpriations Democrats 4 l
Appropriations Republicans 0 2
Education Democrats 3 0
Education Republicans 3 1

Total 10 4

 

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