-'“"‘(.".'1.'1 mfg"

, A SURVEY OF FEDERAL LEGISLATIVE ,
INFLUENCE on Puma scmm DISTRICT -
ADULT EDUCATION IN MICHIGAN

Thesis for "the'Degreeof Ph. D. _
U " MICHIGAN STATE UNIVERSITY f 1 . ‘
‘ WMIAMBURLE DRAPER
' «f; "1967‘ "‘

 

"(HES‘S

This is to certify that the

thesis entitled
A SURVEY OF FEDERAL LEGISLATIVE INFLUENCE
ON PUBLIC SCHOOL DISTRICT ADULT EDUCATION
IN MICHIGAN
presented by

WIIIiam BurIe Draper

has been accepted towards fulfillment
of the requirements for

_._EIZL._D_._ degree in _Ed1.l.ca.1'_i_on

f4» i I EMA/

Major professor
Date m

0-169

 

 

Q2356

 

 

 

 

 

ABSTRACT

A SURVEY OF FEDERAL LEGISLATIVE INFLUENCE
ON PUBLIC SCHOOL DISTRICT ADULT EDUCATION
IN MICHIGAN

by William Burle Draper

The Problem

 

The purpose of this study was to relate specific
changes that have occurred in Michigan public school dis-
trict adult education programs to the influence of federal

education legislation.

Methodology

 

A questionnaire instrument was submitted to adminis-
trators of 185 public school district adult education pro-
grams in Michigan. The instrument was divided into three
sections: (1) general information concerning administrative
aspects of program deve10pment, (2) fiscal and enrollment
data in regard to federal legislative enactments, and (3) a
section to record responses of administrators concerning the
influence of those enactments on Specific aspects of the
adult program. The questionnaire data were submitted to

computor analysis and developed into statistical tables based

 

William Burle Draper

on three stratifications of the pOpulation: (l) federally
and non-federally funded districts, (2) legal classifications
of school districts, and (3) geographic areas of three gen-

eral population densities.

Findings

 

Federal adult education legislation has caused in—
creases in: (l) the expenditure of local tax funds in
27.27 per cent of districts operating adult education pro-
grams in Michigan, (2) the number of administrators employed
in 19.58 per cent of those districts, (3) the employment of
teachers trained to teach adults in 19.58 per cent of those
districts, and (4) the total number of adult education
courses offered in 40.46 per cent of those districts.

Third class districts were most often influenced in all
four respects. Districts in the median area of population
density (151.66 persons per square mile) were most often
affected in these respects with the exception of expendi-
ture of local tax monies. More districts in the densely
populated area (1914.68 persons per square mile) were
influenced in the latter regard.

Since the greatest number of districts affected
by federal adult education legislation were third class
districts rather than fourth class and intermediate school

districts, researchers and state and federal education

William Burle Draper

agencies should concentrate efforts to implement adult
programs in fourth class districts through the adminis-
trative efforts of intermediate school districts.

Although the need for adult education is great,
federal adult education legislation has not approached the
potential of which it is capable in Michigan in providing
equal educational opportunities for all adult citizens.
The accumulated enrollment in federally funded adult basic
education classes represents about one and one-third per
cent of those in need of such education in Michigan.

State aid was considered more important to program
promotion by administrators of federally funded districts
than was federal aid, and lack of funds was most often
named a serious barrier to program development by both
federally and non-federally funded districts. Clerical
and record keeping tasks have increased in 80.26 per cent

of districts implementing federal education legislation.

A SURVEY OF FEDERAL LEGISLATIVE INFLUENCE
ON PUBLIC SCHOOL DISTRICT ADULT EDUCATION

IN MICHIGAN

BY

William Burle Draper

A THESIS

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

1967

ACKNOWLEDGEMENTS

The writer wishes to express his sincere appreci—
ation to all who have helped make this study possible.
Particular appreciation is extended to Dr. Floyd Parker,
chairman of the doctoral committee, for many hours of
patient and knowledgeable consultation generously afforded
the writer. To the remaining members of the committee,
Dr. George Myers, Dr. James McKee, and Dr. Donald Leu, the
writer extends his sincere appreciation for their helpful
advice and encouragement.

Many other members of the Faculty also contributed
greatly to this work. The contributions of Dr. Robert
Sharer, who in his academic wisdom suggested the need for
this study, Dr. Robert Craig, whose invaluable advice in
the use of statistics helped structure it, and Dr. Irvin
Lehmann, who assisted in adapting the questionnaire for
computor analysis, are deeply appreciated.

To various members of the Michigan State Depart—
ment of Education, its divisions and sections, appreciation
is extended for their generous efforts to provide data and

information for this study.

ii

ACKNOWLEDGEMENTS

For unfailing patience and continuous encourage-
ment during this period of research, the writer wishes to
express his gratitude to his wife, Helen M. Draper, and

to his children, William and Margaret.

iii

TABLE OF CONTENTS

Page
ACKNOWLEDGEMENTS . . . . . . . . . . . . . . . . ii
LIST OF TABLES . . . . . . . . . . . . . . . . . viii
LIST OF APPENDICES . . . . . . . . . . . . . . . xvi
CHAPTER
I. THE PROBLEM AND DEFINITIONS OF TERMS 1
USED. . . . . . .
Introduction. . . . . . . . . . . . . 1
The Problem . . . . . . . 3
Statement of the Problem. . . . . . 3
Importance of the Study . . . 3
Limitations of the Study. . . . . . 4
Assumptions . . . . 4
Definitions of Terms Used . . . . . . 5
Hypotheses. . . . . . . . . . 11
Overview of the Study . . . . . . 13
II. REVIEW OF THE LITERATURE. . . . . . . . 15
Finance . . . . . . . . . . . . . . . 15
Local Taxes and Tuition . . . . . . 16
State and Federal Funds . . . . . . 18
Federal Funding Practices . . . . . 21
Educational statistics. . . . . . 22
Matching grants . . . . . . . 22
Administration and Staff. . . . . . 23
Professional preparation of
administrators and staff. . . . 26
Teacher certification . . . . . . 28
Salaries and hourly wages . . . . 28
Promotion of Adult Education. . . . . 29
Use of Advisory Committees. . . . . 32
Cooperating Agencies. . . . . . . . 33
Curriculum and Participants . . . . . 34
Curriculum. . . . 34
Influences acting on the curric—
ulum. . . . . . . . . . . . . 34

iv

CHAPTER

Curriculum trends . . . . . .
Adult Education Participants.

The potential audience. .

Characteristics of adult illit-

erates. . . . . . . . . . . .
Summary . . . . . . . . .
III. METHOD OF PROCEDURE . . . . . . . . .
Sources of Data . . . . . . . . . .
Primary Sources . . . . . . . . . .
Original Data . . . . . . . . . . .
Treatment of Findings . . . . . . .

The Population Surveyed .
Stratification of the Population.
Federally and non- federally

funded districts.
Legal classifications of dis—

tricts. . . . .
Geographic areas. . . .
Collection and Reporting of Data. . .
Summary
IV. REPORT OF THE STUDY
Federal Laws and Funding. . . .

Federally Funded Districts.

Adult Basic Education Program

The Federal Vocation and Technical
Education Acts. . . . . .

Other Acts Containing Provision for
Adult Vocational Education. .

State and Federal Funds . . . . . .

State and Local Revenues. . . .

Federal Influence on Local Tax Ex—
penditures .

Federal Influence on the Total
Adult Education Program . . . . .

Marginality of Adult Education.

Summary . . . . . . . . .

Page

57
58
58
59

61

88

91
98

100

CHAPTER

Administration. . . . . . .
Professional Leadership in Adult
Education Programs. . . .

Federal Influence on the Employment

of Administrators . . . . . . .
Future Plans to Employ Administra-
tive Staff. . . . . . . . . .
Administration and Organizational
Structure . . . .
Promotion of Public School Adult
Education . . . . . . . . .

Adoption of Policy Statements .
Administrative Use of Advisory Com-

mittees . . . . . . . .
Factors Promoting Adult Education
Programs. . . . . . . . . . .
Serious Barriers Retarding Adult
Education . . . . . . . . . . .
Cooperation With Other Agencies In-
volved in Adult Education . . .

Clerical and Record Keeping Tasks
Written Comments of Administrators.

Summary

Adult School Teaching . . . . . . .
Teachers Trained to Teach Adults.
Sources and Numbers of Teachers

Employed. . . . . . . . . . . . .
Average Hourly Wage for Instruction

Summary

Adult Education Curriculum. . .
General Adult Education Curriculum.
High School Academic Education. .
Vocational Education Curriculum
Federal Influence on Curriculum and

Enrollment. . . . . . . .
Total number of courses offered
Total adult enrollment. . .
Courses requiring student fees
and tuition . . . . . .
Community and adult education
needs . . . . . . . . . . .
Economic status of enrollees.

Summary . . . .

vi

Page
101
102
104
107
111

118
121

124
128
136
142
145
149
153

157
158

163
168

175
176
177
179
181
186
186
189
195

198
201

206

CHAPTER Page

V. SUMMARY, RECOMMENDATIONS AND CONCLU—
SIONS . . . . . . . . . . . . . . . . 210
Summary . . . . . . . . . . . . . . . 211
Recommendations and Conclusions . . . 214
Implications. . . . . . . . . . . . . 217
BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . 218
APPENDICES . . . . . . . . . . . . . . . . . . . 224

Table

LIST OF TABLES
Page

Number of districts reporting receipt of
federal funds by area and legal class. . 65

Distribution of school districts report-

ing funds received under the Adult Edu-

cation Act of 1966 or the superceded

Economic Opportunity Act, Title II— B, by
geographic areas and legal classes of

districts. . . . . . . . . . . . . . . 68

Adult basic education —— Michigan
people in Michigan . . . . . . . . . . . 70

Adult basic education —- Michigan
federal dollars —— funding level . . . . 70

Average amounts of funds per pupil re—

ceived under the Adult Education Act of

1966 or the superceded Economic Oppor—

tunity Act, Title II—B, by geographic

areas and legal sizes of school dis—

tricts . . . . . . . . . . . . . . . . . 71

Distribution of school districts report-

ing funds received under Vocational Edu—

cation Acts for the years 1963 through

1966 by geographic areas and legal size

of school districts. . . . . 75

Average amounts per pupil received under
Vocational Education Acts according to

legal size of school districts and geo-

graphic areas. . . . . . . . . . . . . . 76

Distribution of school districts report-

ing funds received under admendments to

the Manpower Development and Training

Act, PL 88-214, by geographic areas and

legal sizes of school districts. . . . . 79

viii

 

Table Page

9. Average amounts per pupil received un—
der amendments to the Manpower Develop—
ment and Training Act, PL 88-214, by
geographic areas and legal classes of
school districts . . . . . . . . . . . . 80

10. Comparative influence of state and fed—
eral funds in promotion of adult educa-
tion programs between federally and
non—federally funded districts . . . . . 83

11. Comparative influence of state and fed—
eral funds in promotion of adult educa—
tion programs between legal classifica-
tions of school districts. . . . . . . . 83

12. Comparative influence of state and fed—
eral funds in promotion of adult educa—
programs between geographic areas. . . . 85

13. Comparison of sources of revenue for
adult education in Michigan for the
years 1960—66. . . . . . . . . . . . . . 87

14. Proportion of K - 12 grade districts
serving adults during the past eight
years. . . . . . . . . . . . . . . . . . 89

15. Comparison of federal legislative in—
fluence on the expenditure of local
funds between federally and non-federally
funded districts in the opinion of ad—
ministrators . . . . . . . . . . . . . . 90

16. Comparison of federal legislative in-
fluence on the expenditure of local
funds according to legal classification
of districts in the opinion of admin-
istrators. . . . . . . . . . . . . . . . 92

17. Comparison of federal legislative in—
fluence on the expenditure of local
funds between geographic areas in the
opinion of administrators. . . . . . . . 93

18. Comparison of federal legislative in—
fluence on district adult education pro—
grams between federally and non—federally
funded districts in the opinion of ad-
ministrators . . . . . . . . . . . . . . 94

ix

Table

19.

20.

21.

22.

23.

24.

25.

26.

27.

28.

Page

Comparison of federal legislative in-

fluence on district adult education

programs according to legal classifi-

cation in the opinion of administrators 96

Comparison of federal legislative in—

fluence on district adult education

programs according to geographic areas

in the opinion of administrators . . . . 97

Comparison of gross adult education ex—
penditures made for elementary and sec-

ondary education in Michigan for the

years 1960 to 1966 . . . . . . . . . . . 99

Professional leadership provided . . . . 103

Comparison of federal legislative in-

fluence on the total number of admin—

istrators employed between federally and

non- federally funded districts . . . . 105

Comparison of federal legislative in-

fluence on the total number of admin—

istrators employed in adult education

programs by legal classifications of

school districts . . . . . . . . . . . . 106

Comparison of federal legislative in—
fluence on the total number of admin-
istrators employed in adult education
programs by geographic areas . . . . . . 108

Comparison of federal legislative in-

fluence on future plans to employ more
administrators in adult program between
federally and non— federally funded dis—

tricts . . . . . . . . . . . . . 109

Comparison of federal legislative in-

fluence on future plans to employ more
administrators between districts accord—

ing to legal classifications . . . . . . 110

Comparison of federal legislative in—

fluence on the future plans of districts

to employ more administrators in adult

program according to geographic areas. . 112

Table

29.

30.

31.

32.

33.

34.

35.

36.

37.

38.

Comparison of federal legislative in-
fluence on the administrative structure
of adult education programs between
federally and non- federally funded dis—
tricts . . . . .

Comparison of federal legislative in-
fluence on the administrative structure
of adult education programs between dis—
tricts according to legal classifications

Comparison of federal legislative in—
fluence on the administrative structure
of adult education programs according
to geographic areas. . . . . . . . . . .

Comparison of federal legislative in-
fluence on the organizational structure
of adult education programs between fed-
erally and non-federally funded districts

Comparison of federal legislative in—

fluence on the organizational structure
of adult education programs according to
legal classifications. . . . . . . . . .

Comparison of federal legislative in-
fluence on the organizational structure
of adult education programs according to
geographic areas . . . . . .

Comparison of policy statements concern—
ing adult education by federally and
non-federally funded districts . . . . .

Comparison of policy statements concern-
ing adult education by legal size of
school district. . . . . . . . .

Comparison by geographic area of public
school district policy statements con-
cerning adult education. . . . . . . .

Distribution of advisory committee com—

ponents by federally and non— federally
funded districts . . . . . .

xi

Page

113

115

116

117

119

120

122

123

125

127

 

Table

39.

40.

41.

42.

43.

44.

45.

46.

47.

48.

49.

50.

Distribution of advisory committee com—
ponents by legal classification of dis—

tricts . .

Distribution by geographic areas of ad-
visory committee components.

Comparison by federally and non—federally
funded districts of the most productive

0

elements promoting adult education .

Comparison by legal size of districts of
the most productive elements promoting

adult education.

Comparison by area of the most productive
elements promoting adult education

Comparison by federally and non-federally
funded districts of the most serious
barriers retarding adult education

Comparison by legal classification of
the most serious barriers retarding

adult education.

Comparison by geographic area of the
most serious barriers retarding adult

education.

Comparison of federal legislative in—
contacts with co—

fluence on districts'

operating agencies between federally and
non-federally funded districts .

Comparison of federal legislative in—

fluence on the number of district con-
tacts with cooperating agencies according
to legal classification of districts

Comparison of federal legislative in-
fluence on the number of district con—
tacts with cooperating agencies between

geographic areas

Comparison of federal legislative in—
fluence on clerical and record keeping
tasks between federally and non—federally

funded districts

0

Page

129

130

131

133

135

137

139

141

143

144

146

147

 

Table

51.

52.

53.

54.

55.

56.

57.

58.

59.

60.

61.

Comparison of federal legislative in—

fluence on the clerical and record keep-

ing tasks of districts according to
legal classifications. . . . . . . . .

Comparison of federal legislative in-

fluence on the clerical and record keep-

ing tasks of district adult education
programs according to geographic areas

Comparison of federal legislative in—
fluence between federally and non—
federally funded districts on the total
number of teachers trained to teach
adults . . . . . . . . . . . . . . . .

Comparison of federal legislative in—

fluence between legal classifications of
districts on the total number of teachers

trained to teach adults. . . . . . .

Comparison of federal legislative in-
fluence between geographic areas on the
total number of teachers trained to
teach adults . . . . . . . . . . . .

Sources and numbers of teachers employed

Comparison of federal legislative in-
fluence between federally and non—
federally funded districts on the total
number of teachers of adults employed.

Comparison of federal legislative in-

fluence between legal classifications of
districts on the total number of teachers

of adults employed . . . . . . . .

Comparison of federal legislative in—
fluence between geographic areas on the
total number of teachers of adults em-
ployed . . . . . . . . . . . . . . . .

Average hourly wage paid for instruction

Comparison of federal legislative in—
fluence between federally and non-

federally funded districts on the salary

or hourly wage paid teachers of adults

xiii

Page

148

150

159

161

162

164

166

167

169

170

172

Tables

62.

63.

64.

65.

66.

67.

68.

69.

70.

71.

72.

73.

Comparison of federal legislative in—
fluence between legal classifications of
districts on the salary or hourly wage
paid teachers of adults. . . . . . . . .

Comparison of federal legislative in-
fluence between geographic areas on the
salary or hourly wage paid teachers of
adults . . . . . . . . . . . . . . . . .

Comparison of the number of courses con—
ducted by public schools in general

adult education programs by instructional
areas. . . . . . . . . . . . . . . . . .

Comparative data concerning high school
credit courses for the years 1960-1966 .

Vocational education enrollments 1964—65
Vocational education enrollments 1965-66

Comparison of federal legislative in-
fluence between federally and non-
federally funded districts on the total
number of adult courses offered. . . . .

Comparison of federal legislative in-
fluence between legal classifications of
districts on the total number of adult
courses offered. . . . . . . . . . .

Comparison of federal legislative in—
fluence between geographic areas on
total number of adult courses offered.

Comparison of federal legislative in-
fluence between federally and non-
federally funded districts on the total
adult enrollment . . . . . . . . . . .

Comparison of federal legislative in-
fluence between legal classifications of
districts on the total adult enrollment.

Comparison of federal legislative in-
fluence between geographic areas on the
total adult enrollment . . . . . . . . .

xiv

Page

173

174

178

180
182

182

187

188

190

191

193

194

 

- 1.9.; #1.". '-..fl

 

Table

74.

75.

76.

77.

78.

79.

80.

81.

82.

Comparison of federal legislative in-
fluence between federally and non-
federally funded districts on courses
requiring student fees and tuition .

Comparison of federal legislative in—
fluence between legal classifications of
districts on courses requiring student
fees and tuition . . . . . . . . . . .

Comparison of federal legislative in—
fluence between geographic areas on
courses requiring student fees and
tuition. . . . . . . . . . . . . . . . .

Comparison of federal legislative in-
fluence between federally and non-
federally funded districts on the ful-
fillment of community's adult education
needs. . . . . . . . . . . . . . . .

Comparison of federal legislative in—
fluence between legal classifications of

districts on the fulfillment of community's

adult education needs. . . . . . . . .

Comparison of federal legislative in-

fluence between geographic areas on the
fulfillment of community's adult educa—
tion needs . . . . . . . . . . . . . . .

Comparison of federal legislative in—
fluence between federally and non-

federally funded districts on the economic

status of enrollees. . . . . . . . . .

Comparison of federal legislative in-
fluence between legal classifications of
districts on the economic status of en-
rollees. . . . . . . . . . . . . . . .

Comparison of federal legislative in—

fluence between geographic areas on the
economic status of enrollees . . . . . .

XV

Page

196

197

199

200

202

203

204

205

207

_._-.—-|. "|-—.-"

LIST OF APPENDICES

APPENDIX

A.

SAMPLE REPORT OF GENERAL ADULT EDUCATION

PROGRAM (FORM AE-2) . . . . .

INTRODUCTORY LETTER AND QUESTIONNAIRE .

MICHIGAN -- COUNTIES, GEOGRAPHIC AREAS OF

POPULATION DENSITY. . . . . .
SCHOOL DISTRICTS SURVEYED

ADULT BASIC EDUCATION PROGRAMS,

xvi

1965-1966

Page

225

229

233
234

242

mp”

 

CHAPTER I

THE PROBLEM AND DEFINITIONS OF TERMS USED

Introduction

 

Federal education legislation and legislative
amendments enacted in recent years have subsidized gener-
al education for adults. This is an innovation in public
school adult education. Previously, federal assistance to
this phase of education has been entirely vocational in
nature. General public school adult education was either
funded by state or local taxes or by student fees and tui—
tion.

Financing of public school adult programs is a
major problem. Their Operation is generally considered to
be marginal to the total school program. Adult clientele,
maintaining no particular loyalties or obligations to the
school, characteristically drop out of classes or enroll
only when it is convenient to do so. Further complicating
the problem is the fact that disputes concerning the desir—
ability of tuition—free adult education have caused state
and local support for such programs to vary between states
and localities within states. Adult education has held a
tenuous position in the total school program. It has had

1

wywfl

 

to compete for state and local funds against elementary

and secondary education in state and local areas where the
tax base often was not adequate to support even the educa-
tion of children and in which the voting public has remain—
ed indifferent or uninformed concerning the educational
problems of adults.

Although the new education laws possibly may affect
public school adult education programs in a number of as-
pects including financial, the laws have a common purpose.
They are directed to remedy basic educational deficiencies
among under-privileged and under—educated adults. Voca—
tional legislative enactments which previously provided
only occupational training have been amended to include
basic and literacy education. It is patently true that
without the fundamentals of learning such as reading, writ—
ing, and basic arithmetic many students are not able to
benefit from vocational education provisions. The War on
Poverty Program has directed the attention of Congress to
the educational problems of under—privileged peoples in the
United States. Because of this attention, federal funds
have been made available to provide educational opportuni—
ties for adults of the lowest socio-economic groups in
American society on the assumption that such general edu—
cation will improve their ability to be self-supporting

and their ability to fulfill their obligations as citizens.

The Problem

 

Statement of the Problem

 

It was the purpose of this study (1) to present
historical data, concerning certain specific aspects of
Michigan public school district adult education; (2) to
relate changes, indicated by the data, to specific feder-
al legislation; and (3) to present the Opinions of admin—
istrators concerning the relation of changes to federal
legislation within their respective school districts, as

revealed by a questionnaire study.

Importance of the Study

 

The financing of adult education has frequently
been stressed as one of the most important factors deter-
mining the nature and scope of adult education. In spite,
however, of the rather general recognition by schoolmen of
adult education objectives and the need for financial plans
to aid in the attainment of these goals, methods for meas—
uring the effects of various financial procedures have been
few and inadequate. Especially limited have been those
studies which describe the current situation in respect to
quantitative characteristics of the field. Survey instru-
ments on which representatives of subject areas record data
to be compared to similar data from other areas occur most

frequently among the available methods. The limitations

of these have been pointed out by Van Dalen. "They portray

 

the facts, but rarely seek to account for why the present
state of affairs has occurred."1 In this study an attempt
was made to employ techniques of which the above criti-

cism cannot be made.

Limitations of the Study

 

This study was confined to selected public school
districts in the State of Michigan which had in operation
a continuous program of education from kindergarten through
grade twelve. It was restricted to public school district
adult education programs not including junior or community
college programs which may have been operated in some in—
stances by those districts. The study involved the six—year
period beginning July 1, 1960 and ending June 30, 1966, and
was limited to general descriptions of federal acts which
the questionnaire survey revealed to be currently imple—
mented by Michigan public school district adult education
programs. It was not considered within the scope of this
study to describe all federal legislation containing impli—

cations or provisions for funding to such programs.

Assumptions

Underlying the present study were certain assump-

tions which were necessary for critical evaluation of the

 

lDeobold B. Van Dalen, Understanding Educational
Research, (New York: McGraw-Hill Book Co., 1962), p. 215

 

results derived from the study. It was assumed that the
State of Michigan Department of Education Report Form
(AB-2) provided a basic instrument for collecting data
concerning finances, program content, and personnel of
public school district adult education programs in Michi-
gan. Further, it was assumed that the selection of the
fiscal years 1960 through 1966 would provide a suffi-
ciently representative pOpulation to give validity to the
study and result in a comparative study of the influences
of federal legislative provisions. It was assumed that
these provisions were of the kind and nature that would be

continued.

Definitions of Terms Used

 

Administrator.--The chief educational officer

 

assigned the responsibility for the general regulation,
direction, and control of the affairs of a public educa-
tional agency. Such an agency might be at the state,
intermediate, or local levels in accordance with the con-
textual use of the word. Hence the use of the term was

in reference to such activities of the Educational De—
partment of the State of Michigan, or to similar functions
delegated to intermediate school districts, or to those

of public school districts.

 

Adplp.--Throughout the report of this investiga-
tion, the term "adult" shall be interpreted as meaning any
person who has passed the age at which compulsory school
attendance laws apply and who is not regularly in attend-
ance in the kindergarten through twelfth grade day school

program.

Adult Education.--Since the term "adult education"

 

has been adequately defined in educational publications of
both the United States Department of Health, Education, and
Welfare and the State of Michigan Department of Education,

the meaning ascribed to the term in these publications was

used throughout this investigation. That definition follows:

Those organized public education programs, other
than regular full—time and summer elementary and
secondary day school, community college, and college
programs, which provide opportunity for adults and
out-of-school youth to further their education, regard-
less of their previous educational attainment. Only
those programs which have as their primary purpose the
development of skills, knowledge, habits, or attitudes
are included. This development may be brought about by
formal instruction or by informal group leadership di-
rected at recognizable learning goals. Activities which
are primarily social, recreational, or for the purpose
of producing goods are not included.2

 

2John B. Holden, Adult Education Services of State
Departments of Education, U.S. Department of Health, Educa-
tion, and Welfare, Misc. Bulletin No. 31 (Washington, D.C.:
0.8. Government Pirnting Office, 1959), p. l; and the State
Board of Education, Michigan Public Schools —- An Analysis
of the Revenues and Expenditures for 1965-66, Bulletin No.
1011 (Lansing: The State Board of Education, 1966) p. l.

 

 

 

.-.. - - —--.'fl-‘

 

Federal action.--Federal action was interpreted as
meaning involvement of United States governmental agencies
through legislative enactments by the Federal Congress,
which provided financial support, guidance, teacher train—
ing, or services to public school district adult education

programs.

Functionally illiterate adult.——Functionally illit—

 

erate adult was interpreted as meaning any adult who had

not completed the first four years of school. Therefore,
literacy education was construed to mean training which con-
sisted of teaching an adult to read, write, and to compute

arithmetically at the level of the fourth grade.3

K — 12 school district.——Since the limitations of

 

this investigation precluded junior or community colleges
which might have been operated in some instances by school
districts, the term "K — 12 school district" was inter-
preted to mean a public school district that was under the
supervision and leadership of a board of education and which
had in operation a continuous program of education from
kindergarten through grade 12, or was moving toward that
goal with the approval of the Michigan Department of Educa-

tion.

 

3A similar definition was used by Betty Arnett Ward,
Literacy and Basic Elementary Education of Adults, U.S. De-
partment of Health, Education, and Welfare, No. 19, OE—l3017
(Washington, D.C.: U.S. Government Printing Office, 1961),
p. 1x.

 

Classifications of school district sizes used in this
investigation were derived from school law4 and were as
follows:

Intermediate school districts. Regional adminis—
trative units succeeding county school districts, but
which do not follow county lines in the jurisdiction
of their duties.

First class school districts. School districts
attaining a census of 120,000 or more children between
the ages of 5 and 20, as certified by the superintend-
ent of public instruction.

Second class school districts. School districts
attaining a census of more than 30,000 and less than
120,000 shildren between the ages of 5 and 20, as certi—
fied by the superintendent of public instruction.

Third class districts. School districts having
a school census of more than 2,400 and less than 30,000
children between the ages of 5 and 20, as certified by
the superintendent of public instruction.

Fourth Class school districts. Any school dis—

trict having a school census of more than 75 and less

 

4State Board of Education, State of Michigan,
"School Code of 1955," General School Laws, 1966 (Lansing:
Legislative Service Bureau, 1966), Sec. 340.1-340.9; and
Sec. 340.21-340.37; and Sec. 340.51-340.77; and Sec. 340.101—
340.122; and Sec. 340.141-340.l66; and Sec. 340.181-340.230;
and Sec. 340.291a—340.329b, [M.S.A. 15.3001-M.S.A. 15.3294].

 

than 2,400 children between the ages of 5 and 20, as certi-

fied by the superintendent of public instruction.

Membership.--Throughout this investigation, in

 

reference to school district classification and state aid,
the meaning of the term "membership" was that defined by
Act No. 312 of the Public Acts of 1957 as amended by

Act No. 285 of the Public Acts of 1964. Pertinent ex-
cerpts follow:

All pupils to be counted in membership shall be
at least 5 years of age on December 1 of the school
year except that all pupils regularly enrolled and
working toward a high school diploma may be counted
in membership regardless of age. Any member of the
armed services in attendance in.the public schools,
the cost of whose tuition is not paid for by other
state funds or by the federal government, shall be
counted in membership regardless of age.

"Full—time membership" shall be construed as all
membership in kindergarten through twelfth grade for
those regularly enrolled in regular daily attendance
on the fourth Friday following Labor day of each year.
The superintendent of public instruction shall give a
uniform interpretation of such full—time memberships.

"Elementary pupils" are defined as pupils in school
membership in grades from the kindergarten to the eighth
grade in districts not maintaining classes above the
eighth grade.

"High school pupils" are defined as pupils in
school membership in grades 7 to 12 except in districts
not maintaining classes above the eighth.5

 

5Department of Education, State of Michigan, State
Aid Act of 1966-67, Act No. 312, Public Acts of 1957, As
Amended (Lansing: Department of Education, 1967), pp. 6-7.
(Mimeographed.)

 

 

-u-. ”----‘—g

10

Organizational and administrative structure.--

 

Throughout this investigation, the term "organizational
structure" shall be intended to mean the interrelationship
of the various parts of a public school district adult edu-
cation program as dominated by the general character of the
whole program. An example of change in organizational
structure would be a regrouping of courses formerly offered
in relationship to other courses or segments of the total
program.

The term "administrative structure" shall be in-
tended to mean the hierarchical order of responsibility
between administrators. An example of change in adminis—
trative structure would be reassignment of administrative
responsibilities between former administrative positions
or assignment of responsibilities to a newly created posi-
tion.

Vocational education.--Vocational education was

 

interpreted to mean occupational and supplementary courses
which were conducted in public school district adult edu—
cation programs, and which were authorized and funded through
federal vocational education laws to provide occupational

training for adults.

11

Hypotheses
The formulation of hypotheses to guide the course

of this investigation was an important factor in the method

of research employed. Financing of public school adult edu-

cation presented many facets worthy of study. Conferences

and interviews with faculty members resulted in several

hypotheses designed to limit the research to certain relat-

ed factors.

Used for the purpose stated above, the hypotheses

are of a somewhat lower order than those found in experi-

mental studies. The use of hypotheses in this investiga—

tion is explained in Chapter III. Statement of the hypoth—

eeses in "null" form was intentionally avoided. Since the

liypotheses were used to guide the research rather than to

<ievelop statistical inferences, there was no purpose in the

uSe of null forms. In this regard, Borg wrote the following:
Hypotheses can be stated in a number of different

forms. The declarative form usually states a relation-
ship between the variables that the experimenter ex-

pects will emerge.6

And further:

The null hypothesis does not necessarily reflect
the scientist's expectations but is used principally
because it is better fitted to our statistical tech—
niques, many of which are aimed at measuring the like-
lihood that a difference found is greater than zero.7

6Walter R. Borg, Educational Research: An Intro—

dth: David McKay Company, 1963), p. 32.

~\1\;Eipp (New York:
7Ibid., p. 32.

¥_

 

12

Null hypotheses are generally used with the more complex
forms of statistical treatment. Any change in the direc—
tion indicated by the hypotheses used in this investigation
would apply to the entire population and therefore the
likelihood of any difference found would be by its nature
greater than zero.

Therefore, it should not be necessary to statisti-
cally determine the probable relationship of any findings
of this research to the total population. Since the entire
population of public school districts offering adult educa-
tion programs in Michigan was investigated, any findings
will be directly related to that population, and any degree
of affirmation of the hypotheses by the findings will be
(:onsidered to substantiate or to verify them.

The declarative hypotheses used were the following:

1. Federal legislation has resulted in increased
amounts of local tax monies to be directed to public
school district adult education programs in Michigan.

2. Federal legislation has increased the number
of public school adult education programs in Michigan
which employ one or more administrators.

3. Federal legislation has increased the number
of instructors trained to teach adults in the public
school districts of Michigan.

4. Public school district adult education adminis—

trators in Michigan have responded to curriculum guidance

 

13

By the federal government by implementing federal edu-

cation legislation.

Overview of the Study

The study is organized in five chapters. The

second chapter contains a review of the literature perti-

nent to the investigation and is separated into three

divisions: (1) Finance, (2) Administration and Staff, and
(3) Curriculum and Participants. In the third chapter, the
methods of research, a description of the population, and

the treatment of the findings are described. Chapter IV

presents the findings of the research. It is divided into

four sections. The first section describes federal adult

education legislation which the questionnaire survey re-
Vealed to be implemented by the public school districts.
Historical data and data derived from the survey are com-
Pared concerning the influence of federal legislation on
Mixzhigan public school district adult education financing

ir1 the first section. Available historical data and data

flflbm the survey are compared in the second section con-

Cerning federal influence on adult school administration

arki organization in Michigan. The third section compares
historical data and data derived from the survey relative
tc’ federal legislative influence on Michigan adult school

teaching, and the fourth section relates historical and

SLLrVey data in regard to federal legislative influence on

14

Michigan adult school curriculum and enrollment. Chapter V

presents a summary for the entire study and the conclusions

and recommendations derived from this research.

 

 

CHAPTER II
REVIEW OF THE LITERATURE

The review of the literature concerning public

school adult education is presented in three divisions and

is intended to afford a background for this research. The

three divisions are: (1) Finance, (2) Administration and

Staff, and (3) Curriculum and Participants.

Finance
Financing, a problem for most enterprises, is no

Lless a problem for educators whose products are less amena-

131e to quantitative measurement than most. Often years of

Waiting are required for statistics to reveal the benefits

(If innovative procedures to society, and even then, their

“Karits may be debated. It is not unreasonable, then, to

fiJud the educational enterprise belabored by financial prob—

lenns. A national study revealed that lack of funds was

neuned most often as a serious barrier retarding adult edu—
cation by representatives of state departments of education.1

\
1John B. Holden, Adult Education Services of State

gsfla§rtments of Education, U.S. Department of Health, Educa-
lcln, and Welfare, Misc. Bulletin No. 31 (Washington, D.C.:

[3:53. Government Printing Office, 1959), P- 8

15

¥_

 

16

Another study, a dissertation undertaken in 1963,
involved the securing of information on problems seen by
140 public school adult education directors in a great
variety of locations. The two foremost problems perceived
by these directors involved the task of financing a total
program and methods of developing community understanding
of the program.2 Since financing is a major problem to
adult educators, it is considered first in this review of
the literature. The following subdivisions are an attempt

to relate the current situation in regard to several as-

pects of financing.

Local Taxes and Tuition

Public school adult education has been traditionally
financed to varing degrees by local taxes and tuition charg-
<3d adult students. The findings of a national survey con-
<1ucted in 1958-59 revealed that the average percentage of
Errogram costs paid by students varied from a low of 13.0
ENEr cent in the largest school systems to a high of 27.3
EKEr cent for the smaller systems. The importance of dis—
t1I‘ict or local tax funds was found to vary nationally from

a-maximum contribution to total income of 52.6 per cent in

2Arthur Chester Madry, "The Functions and Training
Neatads of Adult Education Directors in Public School Sys-
SHHS," (unpublished Ph.D. dissertation, Ohio State Univer-
Slty, Columbus, Ohio, 1963), p. 312. .

17

the largest school districts to 27.4 per cent in the

smaller districts.3

The relationship between local tax expenditures
and tuition charges of school district adult programs ap-
pears to be inversely proportional to school district size.
The larger the school district the greater is the prOpor—
tion of total program costs paid by local taxes. The small-
er a school district the greater is the proportion paid by
fees and tuition. The condition increases difficulties of
citizens in attempting to obtain equal educational opportuni—
ties.

The varying ability of communities to pay for educa-
tional services prompted Morphet, Johns, and Reller to make
the following conclusion:

If every district in each state had equal ability

to support schools and if each state had the same
ability as each other state, the need for State and
Federal support of schools would be less urgent than
under present conditions, except as a means of broaden-
ing the tax base and providing greater equity for tax-
payers. In no state or local system can a reasonably
adequate program be provided unless sufficient funds
are available to meet the costs of that program. The
people in each state and community must, therefore, be

concerned with adequacy of funds as well as with effi—
ciency in organization and operation.

P 3Martin V. Woodward and Ward 8. Mason, Statistics of
vigilic School Adult Education, U.S. Office of Education (Wash-
llhgton D.C.: U.S. Government Printing Office, 1961), p. 25.

 

 

IE 4Edgar Morphet, R. L. Johns, and Theodore Reller,
-T§Higational Administration, Concepts, Practices, and Issues
Englewood Cliffs: Prentice Hall, Inc., 1959), p. 495.

 

‘¥_ __

 

18

The fact that federal support of schools was mentioned in
the same context as state support is indication of an
emerging trend in public school education. James stated
one reason for inequities in educational opportunities due
to inapprOpriate action by state legislatures:

One of the reasons these inequities are so persist-
ent in the United States is that so many legislatures
have granted local authorities the power to tax prop-
erty for school purposes in terms of tax rates, and
thereby have made grants of power which are unequal be-
cause they are prOportional to the per capita valuation
of property. Through much of this century we have de—
vised formulas for distributing unequal proportions of
sales and income tax receipts to local districts to
equalize the great inequities resulting from these un-
equal grants of power to levy local taxes.

Carstenson, Legislative Chairman, Adult Education Association,
spoke for many frustrated educators in the following state-
ment:
If we cannot find adequate financing at the state
and local levels, we must, as an association and as a
movement, be willing to commit the time and energy

necessary to build public understanding and support
and legislative support for Federal funding.

State and Federal Funds

 

No studies were found in the literature comparing

tile influence of federal funds with others on adult public

S 5H. Thomas James, "Emerging Patterns of Federal,
.tfiite, and Local Control for Education," The School Admin-

'$§flE£§Eg£, Vol. XXIV, No. 5, January, 1967, p. 6c.

1. 6Blue Carstenson, "Adult Education and Federal
lGHJiSlation," Adult Leadership, Vol, XII, No. 8, February,
964, p. 250.

%_

 

H—n— — ind-.-

19

school financing. The Adult Education Association's Hand—
book contained a statement concerning state aid and tuition

fees. The statement reported as follows:

As an issue, tuition fees evoke a wide variety of
Opinions even among adult educators. Proponents of
tuition fees cite (a) the danger of spreading resources
too thinly and undermining free public education; (b)
the self-respect which adults get from paying for what
they get; and (d) the increased stability of enrollment
which arises from discouraging those without serious or
well-informed intention. Opponents of tuition fees
emphasize that (a) limitations are placed upon those
who most need adult education, and who are most easily
discouraged -- those with low educational level, with
low income, and those with low incentive; (b) fees limit
the ability of leadership to adjust the nature of the
program to public need rather than public demand; and
(c) public affairs, community development, literacy
education, citizenship education, and elementary and
high school courses are unlikely to be sufficiently
popular for financial independence. Regardless of the
merit of the argument, experience shows that three
fourths of the schools which charge fees have enroll-
ments of three hundred students or less.

If evaluated on the basis of percentages of population served,
State aid is evidently more effective than tuition alone.
Z\Irguments concerning the relative merits of tuition-free
aldult education are subject to debate and will, no doubt,
Ifiamain thus in the minds of educators and citizens alike.
According to Benson, both federal and state grants
Séirve similar purposes with the exception that federal grants

may be used to stimulate state funds for education. Benson

7Adult Education Association of the U. S. A. Financ-

$343 Adult Education in America' 5 Public Schools and Com-
IruInity Councils, Edward B. Olds, coordinator (Washington,

D\~c.. The Association, 1954), p. 143.

 

‘—

20

stated the following concerning grants:

First, the grants may be used to reduce extreme
differences among districts in local tax burden. The
second major purpose is to afford relief from local
taxes. The third major purpose is to stimulate local
, expenditures. Stimulation may be directed toward
‘ the general level of spending or toward the extension

 

of certain specific measures.
‘ He suggested other uses for grants in the following state-
ment:

} Specific grants might be used to balance the pres-
sure for spending on local, immediate objectives by

offering financial aids for such longer-run purposes

as educational research, educational "engineering,"

and the professional develOpment of staff. Even if it

turned out that the richer districts were more inclined

to accept the grants, the effects should not be wholly

anti-equalizing, since under transfer of information

and mobility of teachers the poorer districts should

receive benefits from these kinds of pressures.9

Evaluated on the basis of promoting expenditure of state or
local funds, federal vocational grants have been very effec—
tive. For example, a United States Government study stated
the following:
Both the Smith-Hughes and George-Barden Acts re-
quire that each dollar of Federal money be matched by
a dollar of State of local money, or a combination of

both. Most of the programs are over-matched in State
and local funds.10

8Charles Benson, The Economics of Public Education
(Boston: Houghton Mifflin Company, 1961), pp. 223-24.

 

9Ibid., p. 247.

10United States House of Representatives, The Federal
Government and Education, Edith Green, chairman, Special
Schommittee on Education, House Committee on Education and
Pabor, 88th Congress, lst. Session, House Document 159 (Wash-
1ngton, D.C.: U.S. Government Printing Office, June 14,
1963), p. 85.

 

 

_~—

 

g_

21

- In the same place the report gave an approximate ratio of
federal dollars to state and local support by categories

of training. In the area of distributive occupations, it
was reported that every single federal dollar spent was
matched in 1961 by 3.2 dollars of state and local money.

In the area of home economics every federal dollar was
matched by 7.8 dollars, in trade and industrial education
by 5.5 dollars, in practical nursing by 1.1 dollars, and

in agriculture by 4.0 dollars. The ratio of matching funds

to federal programs ranged from 1:1 to 7:1.

Federal Funding Practices

 

Effective as federal education programs may be in
increasing non-federal expenditures for education, many
problems remain unsolved concerning their administration.
It would not be feasible to review for the purposes of this
research the positions of protagonists for general aid to
education and for current federal practices, but Morphet,
Johns, and Reller expressed a point of View remarkably con—
sistent with the findings of the Legislature. Their state—
ment follows:

The lack of any consistent policy of the Federal
government has undoubtedly resulted in numerous un-
justified Federal controls of education that would not
have been approved had there been a sound comprehensive
educational policy. A number of non-educational agencies
have administered educational programs directly affect—
ing the elementary and secondary educational policies
of the states. Sometimes these agencies have by-passed

the state educational agency and dealt directly with the
boards of education.

11
Morphet, Johns, and Reller, op. cit., p. 186.

 

 

22

Educational statistics.--Green in a letter of trans—

 

mittal accompanying the report on a study of educational
programs in which the federal government is involved ex-

plained some of the existing confusion. Much of the reason

 

I for debate is described in the following paragraphs:

One of the reasons for a good deal of the confusion
I in all debate on the Government's role in education is

the inadequacy and misleading nature of available sta-
tistics. In the first place they are far from current.
A second problem with existing educational statistics
is that they include what each agency itself determines
to be "education" and figures which each agency deter-
mines to be applicable. In many of the larger agencies
there is not even, at a central point, complete knowl—
edge of all the educational programs they administer.

Thus, the statistics available to the Congress, on
which it must base judgement, have in general been badly
outdated. While serious effort is being made to correct
these shortcomings, it is probable that until the Office
of Education has a clearer mandate to secure from all
departments the precise and full information needed,
and more adequate data processing equipment, the problem
will continue to be an acute one.

Matching grants.--The letter continued by saying

 

that there is no consistancy among basically similar pro-
grams within the Government regarding requirements for
matching federal grants. This deficiency was described as
follows:
Most, although not all, programs that distribute
funds to the States for the support of educational

programs require matching on at least a 50-50 basis.
In some programs, however, such as that for improving

 

12U.S. House of Representatives, Edith Green,

Op. cit., p. iv.

—

 

23

science and language instruction and guidance in public
schools, unmatched funds revert to the Treasury; in
others, such as the technical education program, un-
matched funds are redistributed to those States which
can overmatch their initial allocation.

It is clear that a matching requirement stimulates
the flow of non-Federal funds. It is also clear, how-
ever, that it tends to draw uncommitted funds into the
very activities that the Federal Government, from its
point of View, has determined should have top priority.
To the extent that these activities are heavily weighted
toward the sciences, a matching requirement is likely
to accentuate the flow of non-Federal funds to science
also. Furthermore, since non-Federal resources are far
more available to some institutions and some States than
to others, a matching requirement may increase rather
than close the gaps existing between the wealthy and the
poorer institutions.

Administration and Staff

 

The problems of financing public school adult edu—
cation at the local level, whatever they may be at the
other levels, are closely allied to administration and ad-
ministrative policy. Holden expressed this point in refer-
ring to the fact that directors of state departments of edu-
cation named lack of funds more often than any other item
as a serious barrier to program development. He said,
"There is always a question as to whether lack of funds is
due to lack of leadership or whether lack of leadership is
due to lack of funds."14 It is evident that the administra-

tor plays a more important role than anyone else. He is

k

131bid., p. v11.

l4Holden, Op. cit., p. 8.

 

24

the person responsible whether the program is a success or
a failure.

It appears, however, that the image of the adult
education administrator is acquiring a concrete image in
the eyes of school boards, the public, and the adminis—
trators themselves. An evolutionary process similar to that
which occurred for the position of school superintendent
may be develOping. Gilland observed that the school super-
intendency showed little promise of becoming an important
office when it came into existence in the early 19th cen-
tury, but he noted that increasing needs for administrative
leadership and proven ability of the superintendent to cope
with changing conditions resulted in increased responsibili-
ties being given the office.15 It may be that the position
of administrator for public school district adult education
programs will continue to become more recognized as a posi-
tion of importance in the local school systems.

Kempfer, in reporting on evaluative studies of about
a decade past, said that such studies "almost invariably
show programs having full—time directors to be superior in
all significant respects to programs with part—time direc—

tors," and explained that "one cannot expect to find

15Thomas M. Gilland, "The Origin and Development of
the Powers and Duties of the City School Superintendent,"
(unpublished Ph.D. dissertation, University of Chicago,
Chicago, 1935), p. 277.

 

25

well-develOped programs run on the marginal energies of a
day school staff member who is interested primarily in some
other assignment."l6 Holden reported that both state aid

and professional leadership were necessary for program

 

growth.17 These facts are well-documented, and still only
7.2 per cent of the public school programs in the nation
are known to have full-time directors.18

i Although Kempfer concluded that the nation would
have a great many part-time directors for many years, he
observed that "part-time assignments are most successful
if they are filled by persons desirous of devoting full-
time to adult education and if the positions can be ex-
pected to grow into full-time jobs."19 But it is apparent
that this influence could not be expected to make a great
change in the situation. Hurlbut reported that twice the
participation of the state average for California districts
existed in those programs employing a full—time adminis—

trator.20 More recently, Anttonen studied Michigan adult

 

l6Homer Kempfer, Adult Education (New York: McGraw—
Hill Book Co., 1955), pp. 293—301.

 

l7Holden, Op. cit., p. 8.

18Woodward and Mason, op. cit., p. 22.

19Kempfer, op. cit., pp. 293-301.

20Edward V. Hurlbut, An Analysis of the Support of
Epplic School Adult Education in California (San Francisco:

California Teachers' Association, Research Bulletin No. 104,
1957), p. 84.

IIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIIII-E_____________________________

 

 

26

education programs and observed that supervision is frag-
mented into nine different job titles. He felt that a
major reason the programs had not progessed more than they
had was the part-time allotment of superintendents in as-
suming leadership of adult education programs.21

The relationship between school district size and
the employment of a full—time administrator has been de-
scribed. Data collected by Woodward and Mason reveal that
only 5.6 per cent of school districts with between 150 and
11,999 day school students had a full-time director al-
though 31.0 per cent offered adult education programs.
Directors were employed by 31.8 per cent of the school
districts with between 12,000 and 24,999 day school stu-
dents although 76.3 per cent offered adult education classes.
School districts with 25,000 or more day students reported
50.6 per cent as having a full—time director and 88.6 per

cent an adult education program.22

Professional preparation of Administrators and
Staff.--National data on the professional background of
administrators were not available, but a study of public

school programs in California concluded as follows:

21Elmer S. Anttonen, "The Relationship of Adult
Education Program Development in Michigan to State Fiscal
Policy," (unpublished Ed.D. dissertation, Michigan State
University, East Lansing, Michigan, 1966), p. 148.

22Woodward and Mason, op. cit., pp. 5 and 20.

 

27

The prevailing assumption is that experience both
in teaching and in some administrative capacity at
the secondary level are the only prerequisites neces—
sary for administering an adult school, Appointment
often seems related to de facto qualifications for
administering such a program. Superintendents may
make such appointments as a reward for long and faith-
ful service to the district; because there is no other
administrative position available; because nobody else
wants the position; or to give a teacher some adminis-
trative experience prior to promotion to a "more re—
sponsible" position in the system.23

Recommendations of the National Association for Public
School Adult Education differ considerably from current
practices. The following recommendations were made:

Professional training programs for administrators
of public school adult education, in addition to re-
quiring specialized study in the theory and practice
of adult education, should include and encourage con-
tinuing study in the area of liberal arts, human re-
lations and general education administration.24

As a minimum requirement it was recommended that:

An administrator of adult education should have a
minimum of six hours of specialized study in the field
of adult education.25

Although the prevailing Opinion appears to be that teaching
experience and administrative experience at the secondary

level are all that is necessary for administration of adult

education, professional preparation of public school

 

23Jack London, "The Career of the Public School
Adult Administrator, "Adult Education, Vol. X, No. 1,
Autumn, 1959, p. 5.

 

24National Association for Public School Adult Edu-
cation, Public School Adult Education, 1966 Almanac,
(Washington, D.C.: National Association for Public School
Adult Education, 1966) p. 19.

25Ibid., p. 21.

IIIIIIIIIIIII-n---::__________________________________________________

 

 

28

administrators of adult programs may be one way in which

the profession may gain prestige.

Teacher certification.--The research done by Holden

 

in 1959 reviewed the requirements for adult education
teachers and described generally the current situation for
state requirements. Holden found that a majority of the
states required that teachers be certified by the State.

A regular teacher's certificate was required if the course
was given in credit towards a diploma while some states
required a special adult education certificate. When a
person other than a qualified teacher was used, he had to
be at least a high school graduate, be master of the sub-
ject taught, and have proved his ability to teach and under-
stand students. Holden suggested that further research was
needed in the certification area and more inservice train—
ing programs should be provided. He noted that California
and New York had extensive programs in teacher training

and in the develOpment of educational programs for adminis-

trators, supervisors, and coordinators.26

Salaries and hourly wages.-—Remuneration for ad—

 

ministrative services in public school adult programs has
increased. The report of a study in 1964 stated that on

a national basis salaries of both full-time and part-time

26Holden, op. cit., p. 21.

¥

 

29

administrators of adult education programs averaged slight-
ly more than $11,000.00 a year and that this corresponded
to salaries for similar positions of responsibility in the
public schools.27
The rate of pay for adult education teachers has
risen also. In Michigan, Anttonen reported the following
trends:
For the school year ending in June, 1956, 163 of
the 223 public school districts paid their instructors
in adult education less than $4.00 per hour for instruc-
tion. By the end of the 1964 school year only 62 public
school districts paid adult education instructors less
than $4.00 per hour. In 1956, 60 districts paid their
instructors more than $4.00 per hour. By 1964, 81 pub-
lic school districts paid their instructors more than
$4.00 per hour for adult education.28
Comparable data on a national scale were not available, but
a 1964 report of the National Education Association survey

gave the hourly wages as ranging from $.75 to $12.50 per

hour.29

Promotion of Adult Education
Promotion of adult education is generally considered
an administrative function, and nationally, 60 per cent of

public school superintendents feel that the public school

 

27Thomas J. McLernon, 19th Annual Public School Adult
Education Status Study, Division of Adult Education Service
(Washington, D.C.: National Education Association, 1964),
p. 4.

 

28Anttonen, Op. cit., p. 118.

29McLernon, op. cit., p. 3.

 

30

is best suited to provide such programs. This is in spite
of the fact it was reported that only 54 per cent offer any
courses.3O Actually, the number offering courses may be
higher. Another study done the same year reported that 77.2
per cent of responding schools reported having adult pro-
grams.31

The apparent lack of regard by superintendents for
the educational needs of adults was studied by Kempfer.
Kempfer obtained the views of superintendents in relation
to how far the public schools should go in providing educa-
tion for adults and out—of—school youth. The more signifi-

cant observations were:

1. Nearly one-half of the superintendents respond—
ing feel that educational activities for adults and
out-of—school youth should be entirely free or free
except for a nominal registration fee.

2. Fewer than one-fifth of the superintendents
believe that public school moneys should provide only
heat, light, and custodial services for adult educa-
tion activities.

3. Approximately one-tenth of the superintendents
feel that educational activities for adults and out-of-
school youth should be a responsibility of the public
schools.

4. A higher percentage of superintendents in states
providing financial aid favor free adult education than
do superintendents in states providing no aid.

 

30National Education Association, Opinions of School
Superintendents on Adult Education, Research Report 1964-R4,
(Washington, D.C.: National Education Association, Research

Division), pp. 6-9.
31McLernon, Op. cit., p. 2.

32Homer Kempfer, Financing Education for Adults and
Out-of-School Youth (Washington, D.C.: U.S. Government
Printing Office, 1949), p. l.

 

 

31

It is clearly evident that administrators have been aware
of problems of society and the capacity of the public
schools to assist in correcting them.

Although no studies were available concerning the
most productive factors promoting adult education, Holden's
study explained the most serious barriers retarding adult
education development. Ranked first in order according to
the numbers of respondents checking them, these were: (1)
lack of funds, (2) lack of information concerning adult edu-
cation needs of the community, (3) lack of interest of local
school boards, (4) lack of community interest at the local
level, (5) shortage of qualified or interested people to
administer the program, (6) the number of agencies offering
adult education programs, (7) lack of administrative support
at the State level, and (8) shortage of qualified teachers.33
It might be that several of the items, including the first
two, are related to the third, lack of interest of local
school boards. Administrators, aware of the tenuous nature
of their positions, could be timorous in attempting to edu—
cate school boards. The second item, lack of information
concerning adult education needs of the community, and the
sixth, the number of agencies offering adult education pro—
grams, are clearly related to the need for public school

administrators to form and use advisory councils.

 

33Holden, Op. cit., p. 8.

32

Use of Advisory Committees

 

The use of advisory committees has been advocated
by the Michigan Department of public instruction for many
years, the purpose being to assist the director with his
administrative responsibility of promoting the adult educa-
tion program. The Department printed a bulletin describing
the steps in initiation a community adult education program
which stated the following:

Arrange for some type of formal or informal advisory
body to advise in such matters as courses to be offered,
length of courses, acceptable fees, etc. Represented
on the committee should be such organizations as the
P.T.A., Child Study Club, churches, labor, farm and vet—
eran's groups, public officials, etc.3

The Michigan Division of Vocational Education report
stated the following concerning advisory committees:

Advisory committees at both the State and local
levels are considered absolutely necessary in the or—
ganization and Operation of vocational programs which
will best meet the needs of the individuals involved.
An advisory committee is used in the planning of state-
wide conferences or activities such as the annual coor—
dinators' conference and the youth organizations.

At the local level, each school must supply infor—
mation on the personnel and use of advisory committees
in applying for vocational funds.

Anttonen wrote as follows:

The use of citizen advisory committees for program

 

34Michigan Department of Public Instruction, "Initi-
ating a Community Adult Education Program," (Lansing, Michi-
gan: Department of Public Instruction, mimeographed sheet,
undated).

35Michigan Division of Vocational Education, Annual
Descriptive Report for the Fiscal Year Ending June 30, 1966,
(Lansing, Michigan: State Board of Education, 1967), p. 42.

 

33

develOpment has been recommended by many authorities
as an excellent way in which to determine community
needs and to establish coordination between the public
schools and the community agencies concerned with edu—
cational improvement and opportunity.36
He further stated that between 1956 and 1964 the use of
advisory committees in Michigan had declined, being used
by one-third of the public school districts in 1956 and

by only 27 per cent in 1964.37

Cooperating Agencies

 

It may be that larger cities are more likely to use
advisory committees to develop liaison with cOOperating
agencies, or it may be that they have more of such agencies
with which to cooperate than smaller cities. A national
survey reported that in fiscal school year 1959 in school
districts with 25,000 or more day school students, 57 per
cent reported COOperating with other agencies in sponsoring
adult education programs. In cities of between 150 and
11,999 day school students, only 11.8 per cent were re-

ported.38

 

36Anttonen, op. cit., p. 124.
37Ibid., p. 124.

38Woodward and Mason, Op. cit., p. 22.

34

Curriculum and Participants
This division of the review of the literature dis—
cusses the developments in public school adult education
program content, the number of enrollees, and their char-

acteristics.

Curriculum

 

One reason for many administrators' apparent dis-
interest in using advisory committees may be the pressures
exerted by groups to alter the adult school curriculum.
There would seem to be little need to seek further advice

when so much is readily given.

Influences acting on the curriculum.—-Currently,
the public schools of the United States are being influenced
to assume a new role in an attempt by the federal government
to create the Great Society. The new role is one of teach-
ing a previously excluded segment of society a prescribed
curriculum. However, the influence of federal legislation
may be modified by the role expectations held by the local
director of public school adult education and the superin-
tendent of schools. The programs are expected to serve those
who seek further education rather than those who need it.

Griffith discussed the influences as follows:

At the present time the environment outside the
school is cluttered with groups who seek to tell adult
educators what to do, and who are frequently success—
ful in securing legislated financial incentives for
their pet projects. The public school adult educator,

 

 

35

individually, or in concert with his fellow directors,

views the situation as beyond his power to influence

and so passively responds to the external pressures,

abdicating his responsibilities for educational leader-

ship. Under such circumstances the role of public

school adult education is simply that of doing anything

any organized group is willing to pay for and the re-

sulting programs often bear the telltale signs of their

makeshift nature.
The inclination of administrators to View the situation as
beyond their power to influence was cited in another context
by Clark in reviewing the marginal role of adult education.
He stated that "decisions are made and programs are built
in a pervading awareness that the adult enterprise has too
little money, too few facilities, and too tenuous a hold on
its clientele to gain support for its aims or recognition
for its professional personnel.4O Clark wrote that adult
agencies found that financing was closely tied to class
enrollment and that adult students were casual about attend—
ance, finding it easy to drop out.41

The role of adult education is, no doubt, still mar-

ginal, but the influence of legislation has become more

potent in defining that role. Griffith included federal

legislative influence when he named the following forces

 

39William S. Griffith, "The Role of Public School
Adult Education," High School Journal, Vol. XLIX, NO. 2,
November, 1965, p. 60.

 

4OBurton R. Clark, The Marginality of Adult Educa-
tion, Center for the Study of Liberal Education for Adults,
(Berkeley, California: University of California, 1958) p. l.

 

41Ibid., p. 1.

 

36

determining the present role of public school adult educa-
tion:

1. the legislative definition of appropriate roles
expressed through various bills providing financial sup—
port for selected programs.

2. the superintendent of schools, who, although pro-
fessing a belief that the schools should be the central
agency of adult education, shows little leadership in
defining the director positions as full-time or on a
par with principals directing elementary or secondary
education.

3. the director himself.42

Legislation is a potent force which can influence

the other two named by Griffith. A National Association of
Public School Administrators' report stated that it was
potent because of both the finances and the regulations that
accompany it. Some of the program details listed which might
be regulated were; subject matter content, minimum age of en-

rollees, occupation of enrollees, and systematic report

forms.43

Curriculum trends.——The literature was reviewed in

 

order to present indications of recent trends in public
school adult curriculum. A study made in 1951 revealed that
the rank order of course areas according to enrollment was;
(1) public affairs, (2) vocational subjects, (3) general

education, (4) home and family studies, (5) hobbies and

 

42Griffith, Op, cit., p. 62.

43National Association of Public School Adult Educa-
tors, Public School Adult Education - A Guide for Adminis-
trators (Washington, D.C.: The Association, 1963), p. 42.

 

37

recreation, (6) agriculture, and (7) personal develOpment.44
A study made in 1963 ranked course areas by frequency with
which they were offered. The order was (1) vocational sub-
jects, (2) home and family studies, (3) hobbies and recrea—
tion, (4) general education, (5) personal development, (6)
public affairs, and (7) agriculture.45 The comparison of
data afforded by the two studies would indicate certain
trends caused by social, technical, and cultural changes.
Vocational subjects shifted from the second rank to the
first. Home and family studies changed from fourth rank

to second. Hobbies and recreation shifted from fifth rank
to third. Studies of agriculture became less important as
did public affairs courses.

The pressure of civil rights, rising welfare costs,
cybernation, and awareness of the extent of adult illit-
eracy are some of the social and technological developments
which have directed the attention of Americans to the possi—
bilities of adult education, according to Crabtree.46

Changes can be expected in curriculum and in the types of

 

44National Education Association, A Study in Urban
Public School Adult Education Programs (Washington, D.C.:
National Education Association, 1952), p. 17.

 

 

45John W. C. Johnstone and Ramon J. Rivera, Volun—
teers for Learning: A Study of the Educational Pursuits
of American Adults (Chicago, Ill.: Aldine Publishing Co.,
1965), p. 65.

 

 

 

46Arthur P. Crabtree, "War on Poverty," Adult Leader-
ship, Vol, XIII, No. 10, April, 1965, p. 317.

 

38

students enrolling in programs. Crabtree enumerated fed—
eral legislation affecting adult education and stated that

it had now been learned you can't train a man, vocationally,

unless he can read."47

Adult Education Participants

 

There were 1,740,000 public school adult education
participants in 1962 according to a national study. This
figure represented 12 per cent of all enrollments in adult
education classes of all institutions.48 The ratio of adult
students to full-time day school students reported in another
national survey was found to be 1:16 in the smaller school
systems and 1:7 in larger systems.49 Presumably, there are
more obstacles to prevent adults from taking courses in
small towns than in larger ones. This is in spite of the
fact that the cost relative to day school instruction is
reportedly low, consisting of only approximately 1.9 per
cent of day school expenditures.50

Johnstone's study compared the obstacles most fre—

quently cited by persons classified as the "potential"

 

47Ipid., p. 317.

48Johnstone and Rivera, op. cit., p. 61.
49Woodward and Mason, op. cit., p. 9.

50A Study of Urban Public School Adult Education

Programs of the United States, National Education Associa-
tion, op. cit., p. ix.

 

 

39

audience. Forty—three per cent gave financial reasons for
not attending, 39 per cent cited busy schedules, and 37 per
cent lack of sufficient physical energy after a busy day.
Financial constraints were cited more frequently by the
younger adults than the Older. Older persons of the lower
socio-economic background almost exclusively stated that
they felt too old or that it would be childish to attend
classes.51 It is likely that previous academic failures
made the latter respondents look to age as a respite from
academic tasks.

The median ages of participants were calculated to
be 37.6 years in a national survey of adult education parti-
cipation conducted in 1957, and 71 per cent were estimated
to be under 45 years.52

The educational characteristics of adult education
participants showed classes were heavily weighted in favor
of better educated persons. It was found that less than
1 per cent had never attended school, 1 per cent had attend—
ed 1 to 4 years, 3 per cent had attended 9 to 11 years, 36
per cent for 12 years, 20 per cent for 13 to 15 years, 11

per cent for 16 years, and 7 per cent more than 16.53

 

5lJohnstone and Rivera, op. cit., p. 17.

52Marine D. Wann and Marthine V. Woodward, Partici-
pation in Adult Education, U.S. Office of Education Circular
No. 539 (Washington, D. C.: U.S. Government Printing Office,
1959), pp. 5-9.

 

53Johnstone and Rivera, op. cit., p. 76.

40

Johnstone found that 29 per cent of all adult education
participants had attended college and 92 per cent had com-
pleted high school. Over 65 per cent of those enrolled in
public school adult education programs were women.54

The study showed that 75 per cent of the partici—
pants were in the labor force.55 A very small percentage
of those whose lives demonstrated a need for more educa—
tion to earn a better living were enrolled. Occupations
of adult students were Professional, technical and kindred,
23 per cent; Managers, officials and prOprietors were 12
per cent; Operatives and kindred were 10 per cent; Service
workers were 10 per cent; Farmer and farm managers, 2 per
cent; and other, 2 per cent.56

Enrollment in academic and public affairs courses
was biased in favor of the better educated. A majority of
those taking academic and public affairs courses had attend-
ed college (58 and 56 per cent respectively), while on the
other extreme, only 30 per cent of those taking homemaking
and 28 per cent of those studying religion had gone beyond
high school.57 Persons without much formal education were

noticeably absent from vocational and academic courses also

 

54Ibid., p. 85.
55Ibid., p. 73.
56Ibid., p. 73.

57Johnstone and Rivera, Op. cit., p. 81.

 

41

(7 per cent and 6 per cent enrolled respectively). This
was compared to those who had finished high school (53 per
cent and 37 per cent respectively) and those who finished
college (40 per cent and 58 per cent respectively).58

Results of the 1962 study were summarized as
follows:

In summary, one might compose a sort of profile of
the "typical" adult education participant: The part1»
cipant is just as often a woman as a man, is typically
under forty, has completed high school or better, enjoys
an above average income, works full-time and most often
in a white collar occupation, is typically white and
protestant, is married and a parent, lives in an ur-
banized area (more likely in the suburbs than in a
large city), and is found in all parts of the country,
but more frequently on the West Coast than would be
expected by chance.59

The potential audience.--The potential audience

 

for adult education has been scarcely involved. Many na-
tional and state statistics have been quoted in the liter—
ature to demonstrate the need for literacy and vocational
training of adults. One example is the following statement
by Ward:

World War II and the Korean conflict again brought
into sharp focus the problem of illiteracy and its
effect upon manpower needs of the Nation. In 1950,
there were 9 1/2 million Americans who were "func—
tionally illiterate" and many others were considered
to be undereducated. Because of the magnitude and
widespread nature of the problem, illiteracy concerns
all who are now engaged in activities designed to raise
the standard of living and the levels of culture of the

 

58Ibid., p. 80.

59Ibid., p. 78.

 

42

peoples of the United States and the world. But by

1959 a Census report revealed that 7,800,000 adults

25 years pf age and over (italics included in original),
or 8 percent of this age group, were functionally illit-
erate-had completed less than 5 years of schooling.

Of this number approximately 2,109,000 had no schooling;
5,600,000 were white (6.4 percent of the total whites),

and 2,200,000 were nonwhites (23.5 percent of the total

nonwhites).6

 

As another example, Crabtree stated the following:
Today in New Jersey there are over 500,000 adults
whose schooling ended with grade school, and 90,000
who never attended any school. For these citizens,
the lack of basic communication and computation skills
makes full participation in our society nearly impossi-
ble. In terms of educational and economic opportunity,
most of these unfortunate illiterates are stranded on
the back road to nowhere.61
The data are presented concerning educational levels of
citizens in Michigan. In 1960, there were 4,216,909 persons
25 years Of age and older in Michigan. Of these adults,
62,275 had not comleted any years of school, and 182,006 had
completed only 1 to 4 years. There were 1,494,110 net in-
cluding the previous group who had completed only between 4
to 8 years. There were 937,600 who had not completed high
school not including the previous figures. The median num-
ber of school years completed by Michigan's citizens was

10.8 years.62

Luke considered current legislation and the potential

 

60Betty Arnett Ward, Literacy and Basic Elementary
Education of Adults, U.S. Department of Health, Education,
and Welfare, No. 19, OE—l3017 (Washington,D.C.: U.S. Govern-
ment Printing Office, 1961), p. VIII.

 

 

61Arthur P. Crabtree, "War on Poverty," Adult

43

audience. His statement was as follows:

The chances are that if the rapidly changing em-
phasis of many public adult education programs has not
already reflected a much greater enrollment of the seri-
ously under-educated adult residing in the inner center
of the nation's cities, such a change will very soon be
evident in future profiles of the typical adult educa-
tion student.63

Hartke described the relationship between the lack
of economic resources and education. He wrote:

There is the indisputable correlation between the
lack of education and lack of economic resources. In
the total labor force, the 46% who have not completed
high school account for 64% of the cases of the unem-
ployed. Among families with less than $2,000 income,
the family head in 46% of the cases has had less than
an eight grade education, 62% of the jobless fathers
of children receiving aid to dependent children have
less than an elementary school education.64

Gathering the statistics which stress urgent na-
ional needs into a single summary, Shaw wrote the following:

One of every three young adults quits high school,
one of four fails the mental tests for selective ser—
vice, and 85 of every 100 student marriages involve
premarital pregnancy. It is predicted that there will
be 7.5 million high school dropouts during the 1960's.

Automation is wiping out jobs at an estimated rate
of 40,000 a week. Hardest hit are youth without

 

Leadership, Vol. 14, No. 5, November, 1965, p. 161.

 

62U.S. Bureau of the Census, U.S. Census of the
Population: 1960, General Social and Economic Character-
istics, Michigan, Final Report PC(l)-24c (Washington, D.C.:
U.S. Government Printing Office, 1962), p. 24-215.

 

 

63Robert A. Luke, "The Signs of Revolution in Public
School Education," Adult Leadership, Vol. 13, No. 7, January,
1965, p. 203.

 

64Vance Hartke,"At the Edge of a Brave New World,"
Adult Leadership, Vol. 14, No. 4, October, 1965, p. 118.

 

44

experience, older workers, members of minority groups,
men and women in depressed rural and urban areas.
Public assistance costs have reached $5 billion a year
and are rising. It is estimated that by 1970 half the
people living in large cities will be under-educated,
incompetent, or maladjusted charges of the community.
Every eleventh person in the country is over 65
years of age. Almost half of the elderly who are heads
of families receive under $3,000 a year, and close to
two—thirds of those who live alone have an income under
$1,500. It is known that forced early retirement, dwin-
dling job opportunities after the age of 45, and the
decreasing number of three—generation homes leave most
older persons alone, with little to fill their time.
Close to one third of all American marriages end
in divorce. In just about every fifth home in the na-
tion, the wife works. In another fifth of the families,
the annual income is below $3,000. It has been found
that most of these low-income families are headed by a
man or woman without even a ninth grade education.
Spearheaded by the Negro, growing numbers of dis-
advantaged groups strive for equal rights with sit-ins,
stall—ins, freedom marches, and yet one third of Amer-
ican adults do not vote in Presidential elections, and
more than half do not vote in congressional elections.
It has been proven that the more formal educational
experiences a person has had, the more likely he is to
be politically involved and accepting of his responsi-
bilities as a citizen, to feel that his vote really
counts.65

Characteristics of adult illiterates.--The adult
illiterates toward whom poverty legislation is directed
differ in considerable detail from adult elementary students
of the past. To provide a contrast, the following quota—
tions written by Cass and Crabtree are presented. They

said that such students:

1. come from every conceivable cultural, economic
and social background.

 

65Nathan C. Shaw, "Impact," Audiovisual Instruction,
National Education Association, Vol. 11, No. 4, April, 1966,
p. 248.

 

45

2. run the gamut of educational achievement.

3. are motivated by diverse purposes and objectives.

4. range in ability and learning capacity from the
"untouchable" to genius.

5. are at varying stages of educational, emotional,
physiological and psychological maturity.

6. may be native or foreign born, male or female,
black or white, red, brown or yellow, young or old,
married or single, citizen or alien.

Cass and Crabtree described them generally as follows:

1. They stOp coming if they feel that their time
is being wasted.

2. Education is only a part time interest for them.

3. Some urgent need or drive brought them to class.

4. They don't always tell the real reason for com-
ing to class; there may be many reasons - to make friends,

to be part of a group, or for mental stimulation.

5. They like to be comfortable.

6. They want to make social contacts.

7. They have little time for "homework."

8. They like to be treated as mature adults.

9. They appreciate the teacher's friendly interest.
10. They need to know that they can be successful

at what they want to do or learn.

11. They need praise and encouragement.
12. They need the satisfaction of achievement.
13. They are motivated by an intense desire to learn.
14. They are impatient learners, rushed for time

and in a hurry to use the new skill or knowledge.

15. They have much rich experience to bring to the
group.

16. They are able to deal with problems.

17. They appreciate a clear, well-planned learning

experience.

18. They are quick to evaluate and appraise good
teaching.67

A review of the literature reflects that almost every

characteristic accredited to the former enrollees of

 

66Angelica W. Cass and Arthur P. Crabtree, Adult
Elementary Education, Teaching Methods and Practices.
Administrative Principles and Procedures (New York:
and Noble, Publisher, Inc., 1956), P. 28.

 

Noble

28—29.

67Ibid., pp.

46

elementary education classes may be changed. Those to
whom much legislation is directed are the socially excluded
persons. Derbyshire referred to adult illiterates as cul~
turally excluded and made the following statement:

Exclusion cuts off the instutionalized avenues
leading to success. This inhibits learning, accurate
perception, attitude formation, and integrating items
of social significance to the middle class power-holding
community.68

Derbyshire described the illiterates as the "unlearned" and
"unmotivated." These are people whose perceptions are ori-
ented to the present. Their attitudes are frequently classed

by the dominant society as "immoral,' and their socialized
behavior does not meet the standards of the majority group.
They are lethargic. Because each generation tries to suc~
ceed, but fails, lethargy sets in and is transmitted from
generation to generation due to exclusion and many failures.
These people are immoral because of adaptive ways necessary
to survival in the ghetto. An example of conflict with mid-
dle class behavior and beliefs was given by Derbyshire, who
made the following statement:
If the only way a 14 year—old female can maintain

male companionship is through having sex relations,

then she will participate in that type of behavior.

This behavior according to middle class culture is im-

moral and wrong, but for these persons it is a success-

fully adaptive mechanism for personality integration
and group identification.69

 

68R. L. Derbyshire, "The Sociology of Exclusion:
Implications for Teaching Adult Illiterates," Adult Educa—
tion, Vol. XVII, No. 1, Autumn, 1966, pp. 3-4.

 

69Ibid., p. 7.

47

It is generally conceded in the literature that the
lower classes are predominately illiterate. Havighurst and
Neugarten described the lower-working class as the social
group which began to draw a great deal of attention with the
initiation of the War on Poverty programs. He described
their social situation as follows:

Lower—working-class people are easy to stereotype
because they live in highly visible and shockingly poor
quarters-big city slums or low-income public housing
develOpments that are now replacing the slums; flimsy
shacks on "the flats" at the edges of cities; or tenant
farmers' cabins. Sometimes the stereotype holds true,
but frequently it does not . . .

According to origin, lower-class peOple may be di—
vided into at least two groups. There are those who
have been at the bottom of the social structure for
several generations and seem destined to stay there
(except for an occasional mobile son or daughter who
climbs up and then out of the family's sight). There
are also the newest immigrants who perform the most
menial tasks of the society while they are learning
American ways of life. In the past, such people were
frequently Irish, German, Swedish, or Polish. Today
they are primarily Puerto Ricans, Mexican-Americans or
Negro and white tenant or marginal farmers from the
poorer rural areas, who have moved to the city and who
must learn new skills to succeed in modern industrial
society. Most migratory farm laborers also belong to
this class.70

Havighurst described their general characteristics further
in the following manner:

Lower—working-class people have few skills and fre-
quently have less than a grade-school education. Many
have difficulty finding jobs because of their color.
Because they are "the last to be hired and the first
to be fired" they have difficulty acquiring job seniority.

 

70Robert J. Havighurst and Bernice L. Neugarten,
Society and Education, 3rd edition (Boston: Allyn and
Bacon, Inc., 1967), P. 29.

 

 

48

A business recession that has only a slight effect upon
other classes will put many lower-working-class peOple
out of work, swelling the relief rolls. Many people of
this class spend a great deal of time seeking work -
work that will not bring personal satisfaction, but will
provide a meal ticket for the family and an Opportunity
to buy "on credit." Many families are constantly in
debt. It is not surprising that many of these people
believe that diligence and thrift has little to do with
getting ahead, and that only by "luck" or "connections"
will they ever better themselves.

These peOple often distrust persons with unfamiliar
skills, strangers, or persons who represent government
agencies. For insurance against trouble they look to
their network of mutual-help relationships with rela-
tives . . .

Some lower—working-class peOple are members of
fundamentalist Protestant churches, some are Catholics,
but many are unattached to any church. They seldom
belong to formal organizations, except occasionally to
a labor union. It is as though, being unsuccessful in
the wider society, many find social recognition and
satisfactions exclusively within kin and informal
friendship groups.

For these students the experience approach to edu-
cation is most effective. Hand described certain character-
istics of the under-educated adult which make the experience
approach to learning natural for him. Those characteristics
are listed as follows:

1. He is difficult to involve. He must be con-
vinced he can learn.

 

71Ibid., pp. 29—30. These writers refer to four
groups within the lower-working—class distinguished by
Herman P. Miller, Rich Man, Poor Man; the Distribution of
Income in America (New York: Thomas Y. Crowell Co., 1964),
pp. 29—30, 38. These groups are; the "stable poor," un-
skilled workers having steady jobs and a stable family life;
the "strained," having steady jobs but major family and
personal difficulties; the "COpers," people with economic
difficulties but strong family relations who manage to get
along most of the time; and the "unstable," the multi—problem
or "hardcore" cases with financial, family and personal
problems.

 

 

 

49

2. He is likely to be culturally deprived, possi—
bly due to discrimination of one sort or another.

3. He will likely have a different value system
than persons from the middle class. He may even be
hostile to social institutions such as the school.

4. Excessive failures have stifled his drive toward
the typical American values of hard work, success, and
efficiency.

5. He uses and reacts to non-verbal forms of com—
munication more than do other adults.

6. He places more value upon the immediate, less
upon the long-range.

7. He is easily discouraged.72

Derbyshire reiterated many of the above character—

istics and added that illiterates are insecure and that they
often display their insecurity by boisterous and acting—out
behavior. They are physically aggressive when they perceive
their behavior is inadequate to "join the educational team."
The majority of their communication is non-verbal, expres—
sive and explosive. They communicate by expressions, ges-
tures and motions more than the spoken word. Derbyshire
said that often the middle-class teacher of illiterates will
defeat his own intentions by saying what seems to be the
right words to elicit a desired response but betray his
subconscious feelings concerning odors or behavior by an

inadvertant expression of disapproval such as a frown or

grimace. These are more quickly grasped than words by the

 

72S. E. Hand, "Understanding the Under-educated
Adult as a Learner," The Florida Adult Educator, Vol. XVI,
No. l, January—April, 1966, pp. 4-7.

 

 

“-u”

50

illiterate. It is such characteristics, determined by the
social and cultural background of the deprived, which comm
plicates the task of orienting illiterates to learning,

according to Derbyshire.73

Summary

This chapter discussed selected aspects of the
literature as they pertained to the research of the study.
Research studies, book, publications, bulletins, and maga~
zine articles were examined. A number of salient points
were revealed concerning public school district adult edu~
cation. Initially, financing of such programs was reviewed.
Studies revealed that financing was a prime concern among
administrators. Several levels of financing were examined
through the literature. It was learned that there are
differences in the ability of states and communities to
support education. Much legislation has been devised to
equalize the tax burden on local communities. An Adult
Education of the U.S.A. study listed views of proponents
fOr and against tuition fees. One study stated that as a
means of financing adult education tuition fees were less
effective than local taxes in the number of persons served.
State aid was almost twice as effective as local taxes in

this regard. Federal funding practices were reviewed and

 

73Derbyshire, Op. cit., pp. 3-11.

51

problems of the Government were discussed. The literature
stated that federal grants were highly successful if evalu—
ated on the basis of promoting non-federal expenditures.
The ratio of non-federal to federal matching ranged from
1:1 to 7:1.

Secondly, selected aspects of public school adult
education were reviewed in regard to administration and
staff. The importance of full-time administration to fi—
nancing and program development was discussed. Professional
preparation of administrators and staff was reviewed and it
was noted that administrators were often placed in adult
education for training experience and teachers of the pub-
lic day school program often met requirements to teach
adults merely by regular teaching certification. Salaries
and wages of both administrators and teachers were shown
by the literature to have increased. Remuneration of adult
education administrators compares favorably with that of
positions of similar responsibility in the public schools.
The uses of advisory committees were shown to be generally
approved and recommended instrumentations to assist adminis-
trators in program development and as an effective aid in
establishing liaison with COOperating agencies.

Finally, the literature pertaining to public school
adult curriculum and clientele was examined. Various pres-

sures to alter the curriculum, including federal legislation,

 

52

were mentioned. Decisions concerning course offerings are
made on the basis of enrollment rather than the educators'
knowledge and experience. It was evident that federal
grants are considered an effective force in raising the
professional stature of adult school administrators.

A comparison of two national studies made twelve
years apart revealed that vocational subjects have gained
great pOpularity in the adult school program while public
affairs courses appear to have lost greatly in relative
importance. Home and family studies have also gained pop—
ularity as have those in the area of hobbies and recreation.

Participants in public school adult programs have
been predominately of the middle class of society. There
are indications that there will be a change in clientele
toward persons of the lower income strata due to federal
education programs. Characteristics of the lower-working-
class described in the literature present peculiar problems

for the teacher of adult students.

 

CHAPTER III

METHOD OF PROCEDURE

This study was designed to employ a method of
descriptive research which utilized certain bypotheses
formulated on the basis of apparent trends in public
school adult education. Their purpose was to provide a
more specific description of the current status of the
field than might otherwise be obtained by a summary of
statistical and descriptive information. Good, Barr, and
Scates explain this use of the hypothesis in descriptive
research as follows:

A hypothesis thus serves the three-fold function
of limiting the field of investigation, of sensitizing
the observer to pertinent facts, and of colligating
the facts Observed about different phenomena into some
simple form.1

Van Dalen describes the nature of hypotheses used in de-
scriptive research as being of a lower order than those
found in explanatory studies. He wrote:

If descriptive studies present hypotheses, they
are usually of a somewhat lower order . . . Descriptive
studies simply portray the facts--they describe what

exists but rarely seek to account for why the present
state of affairs have occurred.

 

lCarter V. Good, A. S. Barr, and Douglas E. Scates,
The Methodology of Educational Research, (New York:
Appleton-Crofts, Inc., 1941), pp. 185—186.

 

53

54

Descriptive studies may describe the rudimentary group—
ing of things by comparing and contrasting likenesses
and differences in their behavior. They may classify,
order, and correlate data seeking to describe relation—
ships that are discoverable in phenomena themselves.

But they do not penetrate into knowledge that lies
beyond that which can be gained directly from the events
or conditions. They do not fully analyze and explain
why these relationships exist. Seeking higher order
meanings is left to explanatory hypotheses.2

Rather than simply to tabulate facts, the study
attempted to follow the lead of competent researchers who
collect information on the basis of some hypothesis or
theory, tabulate and summarize the data, and then analyze
it in an endeavor to draw meaningful conclusions. This
function of descriptive research is explained by Van Dalen
when he states:

Descriptive studies that obtain accurate facts
about existing conditions or detect significant rela-
tionships between current phenomena and interpret the
meaning of data provide educators with practical and
immediately useful information. Factual information
about existing status enables members of the profession
to make more intelligent plans about future courses of
action and helps them interpret educational problems
more effectively to the public. Pertinent data re-
garding the present scene may focus attention upon needs
that otherwise would remain unnoticed. They may also
reveal develOpments, conditions, or trends that will
convince citizens to keep pace with others or to pre—
pare for probable future events. Since existing edu-
cational conditions, processes, practices, and programs
are constantly changing, there is always a need for
up-to—date descriptions of what is taking place.3

 

2Deobold B. Van Dalen, Understanding Educational
Research, (New York: McGraw-Hill Book Co., Inc., June,
1962), p. 215.

 

3Ibid., p. 212.

55

The basic method of research used in this study
relates closely to patterns of descriptive investigations
outlined by Van Dalen. In these he classifies several
arbitrary types: (1) survey studies, (2) inter-relation—
ship studies, and (3) developmental studies. All descrip—
tive studies have Characteristics of more than one area,
but all such studies have certain common elements of agree—
ment and objectives. As in the present study, they all
portray current status and sometimes identify relationships
that exist among developing trends and phenomena. Although
occasionally the studies attempt to make predictions about
future events, this is not the case in the present study.

While this form of research may not necessarily be
of great predictive value, its temporal value is not thus
limited. A comparison of the present status with the past
under specified conditions can be useful to indicate develop—
ing trends in education that help in formulating guidelines
for the future. Good, Barr, and Scates said of this re-
search design:

The normative-survey method is not notably forward—

looking, but it may be of service in this direction.

It may reveal practices or conditions which are well above
average, representing advanced thinking and adminis—
tration; . . . Again, the normative method may call
attention to current trends and permit people to

evaluate and direct these tendencies which are taking
shape. The normative attack is not essentially forward—
looking in itself, but it may well perform an important

function in giving pertinent data to persons who are
forward—looking.

 

4Good, Barr, and Scates, op. cit., p. 293.

—.—j

56

Sources of Data

 

PrimaryVSources

 

Primary sources of data used in this research were
bulletins and year-end reports of the State of Michigan
Department of Education. Basic data were derived from the

State of Michigan standard report form (AE-2).5

Original Data

 

Original data were obtained through a questionnaire
directed to administrators of Michigan public school dis-
tricts described in the subdivision the "Population Sur-

veyed."6

Treatment of Findings

 

The Population Surveyed

 

A total of 212 school districts presented in a list
obtained from the Adult Education Section of the Michigan
Department of Education was surveyed by questionnaire.7

Four of the 212 districts surveyed were intermediate

 

5A sample report form (AE—2) may be seen in Appen—
dix A, p. 225.

6A sample of the questionnaire may be seen in Ap-
pendix B, p. 229.

7A list of school district names and cities in which
they are located is presented in Appendix D, p. 234. This
list was from The State of Michigan, Adult Education Sec-
tion, General Adult Education Programs, 1965-66 (Lansing,
Michigan: mimeographed, September 2, 1966), 8 pp.

 

 

v- .—

57

school districts. Of these three responded and a fourth
wrote saying that the questionnaire would be a duplicate of
the only district within its jurisdiction which had an
adult education program and therefore did not return the
questionnaire. .Eleven districts replied that they did not
have an adult education program. Twelve districts wrote
requesting a new questionnaire because the original had
been lost, and one district submitted data sheets not per~
tinent to the study in lieu of the questionnaire. Includ~
ing the three intermediate districts, there were 143 dis-
tricts which responded to the questionnaire as having an
adult education program. This return was 74 per cent of
the 185 programs incorporated in the fiscal 1966 report
report of the Adult Education Section.8 It was 67 per cent

of the total number of districts surveyed.

Stratification of the Population

 

Responses to the questionnaire were categorized
according to three criteria in order to present them in a

descriptive manner.

Federally and non—federally funded districts.—-The

 

responses were grouped as being received from school dis—

tricts which implemented federal education programs and those

 

8Michigan Department of Education, Adult Education
Section, Public School General Adult Education in Michigan,
1965-66, Statistical Information (Lansing, Michigan: State
Board of Education, Publication No. 512), p. 2.

58

which did not. This grouping was used to identify federal
influence on adult education programs other than those di—

rectly involved with federal programs.

Legal classifications of districts.--The responses

 

were also grouped according to legal classifications of
school districts described under "Definitions of Terms"
in the first chapter. This grouping permitted divisions
of the responses according to school district enrollment
and afforded a further description of the districts ac-

cording to accepted definitions.

Geographic areas.——The responses were grouped ac-

 

cording to three geographic areas of the state. These
presented a further general description of school districts
by defining the densities of the pOpulations served. With
few exceptions the division accurately described the gen-
eral population of the state.

Area I was found to be the most densely pOpulated
area of the state. It contained an average of 1914.68
persons in each square mile based on computations involv-
ing 1960 Census figures.9 It contained three counties,

Oakland, Macomb, and Wayne Counties.10

 

9U. S. Bureau of the Census, U.S. Census of Popu-
lation: 1960, Number of Inhabitants, Michigan, Final Re—
port PC (1)—24A (Washington, D.C.: U.S. Government Printing
Office, 1961), p. 24-14.

 

 

10A map of Michigan depicting the boundaries of the
areas is presented in Appendix C, p.233.

 

 

 

59

Area II was named the median area of population
density. It contained an average of 151.66 persons per
Square mile and included 35 counties. It included all
Counties except those in Area I below a line drawn along
the northern boundaries of Muskegon, Kent, Montcalm, Gra-
tiot, Midland, and Arenac Counties.

Area III was named the sparcely populated area of
the state. It contained an average of 21.84 persons per
square mile and included 45 counties above the northern

boundary of Area II.

Collection and Reporting of Data

Preliminary investigations were carried out to de-
termine the feasibility of the study. This included a
review of selected readings in the literature of federal,
state, and local planning for public school adult education
programs, a search of Dissertation Abstracts, and a series
of discussions with persons experienced in the field of
public school district adult education. Conferences were
held with Michigan State University faculty members, offi-
cials of the Michigan Department of Public Instruction,
several administrators of local school districts included
in the pOpulation, and letters of inquiry were sent to the
Division of Adult Education Programs, U.S. Office of Edu-

cation. Preliminary readings suggested that a generalized

approach to the study of federal influence on public school

 

60

district adult education programs was feasible, and all
discussions indicated not only the feasibility but the need
for the study. The study was designed to be carried out

in the following four steps:

(1) A systematic study of the available literature
in the area of public school district adult education fi-
nancing and organization was completed. It was also nec-
cessary to review literature pertinent to citizens who are
educationally deprived because of the fact that most current
federal legislation contains provisions for training these
peOple.

(2) Available primary data were collected from
state and federal agencies on the basis of relationship to
the four hypotheses used in the study. These data were
summarized to describe trends which occurred during the
period being studied.

(3) A questionnaire instrument was develOped to
supplement primary data and to record opinions of adminis—
trators concerning federal influence in their individual
districts. The instrument was divided into three sections.
Section A pertained to general information about the program
and contained four categories of responses including policy
statements, promotional factors, barriers to program develop—
ment, and use of advisory committees. Section B pertained
to fiscal and enrollment data in regard to federal education

programs. And Section C pertained to the opinions of

61

adnunistrators concerning federal influence on specific
aSpects of adult education programs. A preliminary test
Of the instrument was made with the aid of administrators
taken from the population surveyed.

(4) The data Obtained by questionnaire were sub-
mitted to the Computor Section of Michigan State University
and tabulated according to the stratifications already de—
scribed. These data were then organized into tables re—
lated to the several hypotheses. The data were analyzed,

conclusions drawn, and recommendations formulated.

Summary

A normative-descriptive approach was used in the
survey. 'To follow the lead of competent researchers who
collect information on the basis of some hypothesis or
theory rather than just tabulate the facts, hypotheses
were employed. Questionnaires were submitted to all dis—
tricts reported on a list provided by the Adult Education
Section of the Michigan Department of Education. These
were districts reported to have adult education programs
in operation. Seventy-four per cent of the 185 districts
having adult education programs responded to the question-
naire.

The data were submitted to the Computor Section

of Michigan State University and tabulated in reference

to the stratifications of federally and non-federally

 

m—u—r—r fair

62

funded districts, legal classifications of school district

sizes, and geographic areas of the State of Michigan.
These data were then related and compared to primary data,

conclusions drawn, and recommendations made.

 

 

CHAPTER IV
REPORT OF THE STUDY

The findings of this research are divided cate-
gorically into four sections: (1) Federal laws and
federal influence on Michigan adult school financing, (2)
Federal influence on Michigan adult school administration
and organization, (3) Federal influence on Michigan adult
SChool teaching, and (4) Federal influence on Michigan
adult school curriculum and enrollment.

The first section is placed at the introductory
Stage of this chapter and contains descriptions of federal
acts which the questionnaire survey revealed were sources
of funds for public school district adult education pro—
grams. Each section is concerned with the treatment of
data obtained from historical records of the Michigan
State Department of Education and the Michigan State De-
partment of Vocational Education. These data supplement
information obtained by the questionnaire. Questionnaire
data included opinions of administrators concerning fed-
eral influence within their respective districts in regard
to Specific aspects of adult education.

Data obtained by questionnaire were considered in
regard to three variables. They were compiled as information

63

 

64

from federally and non—federally funded school districts,
as information from three geographic areas of the State

of Michigan based on pOpulation density, and as information
from school districts of various legal classifications as
defined by Michigan School Law. Percentages pertaining to
the extent and nature of federal influence were determined
within each variable, and were used to describe the charac-
teristics of public school districts in Michigan implement-

ing federal adult education legislation.

Federal Laws and Funding

 

Fiderally Funded Districts

The data with regard to classifications of school
diStricts responding to the questionnaire and the geographic
areas in which they were located are presented in Table l.
A tOtal of 76 districts (53.15 per cent of the 143 districts
Which responded) reported receiving money under one or more
federal acts. There were 67 which reported that they did
not receive federal funds. The greatest number of federally
funded districts was third class districts of which 23 were
located in the geographic area of greatest pOpulation den-
Sity, 20 in the median area of pOpulation density, and
Six in the most sparcely pOpulated area. Fourth class dis-
tricts were almost evenly distributed between the Sparcely
populated area and the area of median density with one dis-
trict being located in the area of greatest density. The

dis - . . .
trl}out10n conforms to that wh1ch would be expected w1th

TABLE 1. Number of districts reporting receipt of federal
funds by area and legal class.

 

 

 

 

 

Class Intermediate 1 2 3 4 Total
Area I 0 0 O 23 l 24
Area II 1 0 2 20 10 33
Area III 2 0 0 6 ll 19
Total 3 0 2 49 22 76

 

Percent of

Total
Districts Reporting Receipt
.015 Federal Funds 76 53°15
Districts Not Receiving
Federal Funds 67 46.85
Total 143 100.00

66

the greatest number of larger school districts which re-
ceive federal funds being located in more densely populated
areas, the smaller districts in sparcely populated areas,
and the organization of adult education facilities by
intermediate school districts being necessary in median

and less pOpulated areas.

Adult Basic Education Program

 

The Office of Economic Opportunity was authorized
to disperse funds to the States for public school districts
under the Economic Opportunity Act of 1964, Title-II-B,:L
during the fiscal school year, 1963-64. Part B authorized
the Director to make grants to the states for programs,
conducted pursuant to state plans, to provide instruction
to Persons age 18 and over whose ability to read and write
English constituted substantial impairment to their ability
to get or retain employment commensurate with their real
ability. The powers of the Director under part B were
delegated to the Secretary of Health, Education, and Wel-
fare, subject to the reporting and coordinating provisions
Of Sec. 611 of the Economic Opportunity Act of 1964, by a
delegation approved by the President on October 24, 1964,
29 F~ Ei. 14764, October 29, 1964. Part B of title II of
the Economic Opportunity Act of 1964 was repealed by
\

1Economic Opportunity Act of 1964, P.O. 452, 88th

C
ong- ' 'Title II-B, Sec. 212, 78 Stat. 520.

*__

67

section 315 of the Elementary and Secondary Education
Amendments of 1966, Public Law 89-750, November 3, 1966,
and Adult Education Act of 1966, 80 Stat. 1222. Title III
of the Elementary and Secondary Education Amendments of
1966 authorizes a program generally similar to former part
B to be administered by the Commissioner of Education.
Table 2 summarizes the number of districts in each
legal classification and geographic area which responded
by initiating programs under these acts for under-educated
adults. One district reported receiving funds during the
fiscal 1964 school year. Thereafter, during the fiscal
1965 and 1966 school years districts responded rapidly.
The majority of districts were third class districts in
each of the geographic areas. During the 1966 school year
14 third class districts in Area I, 13 in Area 2, and 7 in
Area 3 provided basic education programs. Two second class
districts in Area 2 Continued to operate such programs from
the Previous year, and 3 new fourth class districts were
added to the two Operating programs the previous year. In
Area 3 , 2 fourth class districts Operated programs begin—
ning in fiscal year 1965 through 1966. Two intermediate
school districts reported receiving adult basic education
funds in Area 3 in fiscal 1966. Information in regard to
adult basic education obtained after compilation of the data
had been completed was secured from the single first class

d. ' . c
lstrlet in Michigan. This district was located 1n Area 1.

¥

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How mmmao an mpOHHume mo Hones: Hmsuom may mocsaoca HODOD HmucoNHHos one
.1

 

 

 

 

 

oe N N a H m NH N eH .Htuoe
oe N N a H m NH N eH ooImoaH
oH I N I I N e N o moIeoaH
8 H I I I I I I I H eoImoaH
6 I
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mmmHO mmmHO mmmHO mmMHU mmmHO mmOHO mmmHO mmmHU
m mou< N nous H OOH<

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.mIHH OHHHB .pos muflsspHOQQO Oaaocoom cocoouomsm one so coma mo #04 cofiumospm
pascs Orv Moons co>aooon mpcsm mcapuomos muoauumflp Hoosom mo soapsnauumam .m mqmde

69

Including the first class district, there were 17 districts
providing such programs in fiscal year 1965 and 47 districts
in 1966. Fifty districts were listed for fiscal 1966 by the
Adult Education Section of the Michigan Department of Educa-
tion.2

Tables 3 and 4 present data from the United States
Office of Education pertaining to adult basic education
programs in the State of Michigan. Although the amounts
of funds shown are greater than those described in the
preceding paragraphs, it should be noted that a small frac—
tion of the questionnaires from which those data were de—
riVed was disqualified. When the totals which include
those of the first class district are compared to these
data from the Office of Education, the questionnaire re-
sults compare more closely. Also included in Table 3 is
the "target population" of adults aged 18 years and older
With less than an eighth grade education in Michigan. If
the Sum of enrollments for fiscal years 1965 and 1966 is
compared to the target population, it represents only about
one and one—third per cent of those to whom the program is
direcZted. A judgement based on population needs would
predict that adult basic education will be continued for
many years in the State of Michigan.

Table 5 summarizes the average amounts of money

receiVed per pupil by legal classifications of school

 

p 2 2A list of these districts is presented in Appendix E,
' 42.

¥*——i

 

70

TABLE 3. Adult basic education--Michigan peOple in program.

 

 

 

Target _ _ FY-l967
POpulation* FY 1965 FY 1966 Estimated
765,182 1,424 8,699 3.040

 

*Adults 18 years and over with less than an eighth
grade education, 1960 Census.

TABLE 4. Adult basic education--Michigan federal dollars
—-funding level.

 

 

FY-l965 FY-1966* FY-l967 Cumulative Total

 

0 2,167,000 757,000 2,924,000

 

*Includes fiscal year 1965 carryover. Fiscal
figures rounded off to nearest thousand.

The source for the above Tables 3 and 4 was the
U.S. Office of Education, Division of Adult Education Pro-
grams, Adult Basic Education, Program Summary, Adult Educa-
tion Act of 1966 TWashington: U.S. Office of Education,
ABE—1, March, 1967), p. 7.

 

 

 

7l

 

thmflZ hmauz mmflz hmauz OOHHZ mmmflz owoaflz Ohmnz NoNHHZ

 

 

 

 

oo.hnn.mmmm hm.momw mo.mmam mo.nmaw oo.wam mm.waam Hm.mmaw oa.mmaw mn.mmw ooImme
Homauz I omnz I I Hmuz womuz omHuz ohnuz
oo.mam.mm w I om.mmaw I I HH.>> w Ha.mm m mm.mmam wm.ovm moIvomH
ammuz I I I I I I I ammuz
oo.oom.m w I I I I I I I om.m w voImomH
pm>flmomm .pmfiumucH v m .pmfiumpaH v m m m ummw
mpcsm mmmHO mmmao mmmHO mmmao mmmao mmmHO mmmao mmmau
Hmuoe
m mmud m mmum H wmum
.muoflnumflp Hoonom m0 mmuflm Hmmma paw mmmum
oaammumomm an .mIHH mHuHB .uo¢ moanspuommo GHEocoom pmpmoanSm man no moma
mo pom coapmospm paspfi mnu Hops: om>flmomu Hanna umm macaw mo mpasoam mmmum>¢ .m mqm<a

 

72

districts and geographic areas. The largest average amount
per student, $202.37, was received by the intermediate
school districts. Their programs enrolled 137 students in
fiscal 1966. The range in funds for other districts was
$9.96 per pupil in 1963-64 by the third class district re-
porting that year in Area 1 to $182.10 per student by a
second class district in Area 2. The table shows that
approximately $392,777.00 were added to Michigan school
district revenues in 1965-66 under the Adult Education Act
of 1966. The first class district in Area 1 reported funds
not included in the tables. Totals would be increased for
1964-65 by $247,000 and for 1965-66 by $500,000 had these
funds been included. Totals for students enrolled would

be increased by 4,000 pupils in 1964-65 and 8,000 in l965~
66. Average amounts per pupil in the first class district
were $61.75 in the former year and $62.50 in the latter.
Including this district, total funds to all districts were
$333,319.00 in fiscal year 1965 and $892,777.00 in 1966.

The Federal Vocational and
Technical Education Acts

 

 

The Smith-Hughes Act of 1917 provided for the pro-
motion of vocational education by a permanent apprOpriation
for allotment to the States for agricultural education,
trade, home economics, and industrial education, and the
training of teachers of these subjects. The Act has served

as a base for the cooperative federal-state—local programs

73

of vocational education.3 The Vocational Education Act of
1946, or George-Barden Act, provided for further develop-
ment of vocational education and authorized increased ap-
propriations, use of funds for administration, vocational
guidance, and training in distributive occupations.4

The George—Barden Act was amended by title III of
the Health Amendments Act of 19565 by addition of a new
title II to provide grants to State for the extension and
improvement of practical nurse training. The term practi—
cal nurse training was defined in the act as including also

"training of a similar nature which is designed to fit

 

individuals engaged or preparing to engage in other health
occupations in hospitals or other health agencies for such
occupations."

The Vocational Education Act of 19636 authorized
federal grants to States to assist them as follows:

. . . to maintain, extend, and improve existing

programs of vocational education, to develop new pro-
grams of vocational education, and to provide part—time

 

3Public Law 347, 64th Cong., 39 Stat. 929, 20 U.S.C.
11—15, 16-28.

4Public Law 586, 79th Cong., 60 Stat. 775, 20 U.S.C.
2 m, o—q.

 

5Public Law 911, 84th Cong., 70 Stat. 925—929, as
amended in act of April 24, 1961, Public Law 87-22, 75 Stat.
44, 20 U.S.C., 15aa-15ii. Made permanent legislation (sec.
11, Public Law 88—210).

6The Vocational Education Act of 1963, Public Law
210, 88th Cong., 77 Stat. 403.

A

 

74

employment for youths who need the earnings from such
employment to continue their vocational training on a
full—time basis, so that all persons of all ages in all
communities of the State -- those in high school, those
who have completed or discontinued their formal educa-
tion and who are preparing to enter the labor market,
those who have already entered the labor market but
need to upgrade their skills or learn new ones, and
those with special educational handicaps [italics not
included in the original] —— will have ready access to
vocational training or retraining which is of high
quality which is realistic in the light of actual or
anticipated opportunities for gainful employment, and
which is suited to their needs, interests, and ability
to benefit from such training. (sec. 1, Public Law
88—210).

The Smith-Hughes and George-Barden Acts and sub-
sequent amendments to them have been combined in this re-
search under the Vocational Education Act of 1963 (P.L.
88—210) which liberalized these acts and their amendments
to include a broader area of programs and clientele. Edu—

cational deficiencies of underprivileged adults were in—

cluded in vocational training. Table 6 shows the distribution

of school districts reporting funds under these combined acts.

The greatest concentration of districts receiving money un—
der these acts was in classification 3, and this holds true
of all geographic areas.
Average amounts of money per pupil are shown in

Table 7. The total amounts of money received by districts
as well as the total numbers of pupils enrolled under these
acts increased significantly during the 1964—65 school year.
This was undoubtedly due to the impact of the Vocational
Education Act of 1963. The 1964-65 figures show a total

increase of 1887 pupils over 1963—64. Total funds

 

 

 

 

 

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77

were $34,969.00 greater than the previous year. During
the fiscal 1966 school year total revenue only increased
by $494.00 above 1964-65. The total number of students
increased only by 200. However, federal vocational educa-
tion funds added $84,444.00 to those of other sources re—
ceived by Michigan public school district adult education
programs in the fiscal 1966 school year.

Other Acts Containing Provision
for Adult Vocational Education

 

 

The Manpower Development and Training Act of 1962,
as amended,7 provides for a program of training and re—
training of unemployed youth and adults. Subsection (b)
of section 202 reads as follows:

Whenever appropriate the Secretary shall provide
a special program for the testing, counseling, selec-
tion, and referral of youths, sixteen years of age or
older, for occupational training and further schooling,
who because of inadequate educational background and
work preparation are unable to qualify for and obtain
employment without such training and schooling.

Subsection (j) of section 202 also provides that:

Whenever appropriate the Secretary of Labor may
also refer, for attainment of basic education and com-
munications and employment skills, those persons who
indicate their intention to and will thereby be able
to pursue, subsequently or concurrently, courses of
occupational training of a type for which there seems
to be a reasonable expectation of employment of who
require such other preparation to render them employable.
Such referrals shall be considered a referral for train—
ing within the meaning of this act.

 

 

7Manpower Development and Training Act of 1962,
Public Law 415, 87th Cong., March 15, 1962, 76 Stat. 30,
42 U.S.C. 2571-2620, as amended in act of December 19,
1963, Public Law 214, 88th Cong., 77 Stat. 422.

 

 

78

The act provides (pt. B, title II) for the Secretary of
Health, Education, and Welfare to enter into agreements
with the several state vocational education agencies to
provide such occupational training found to be necessary
by the Secretary of Labor.

The purpose of the act is to provide educational
opportunities for unemployed people enabling them to secure
employment and to be taken off the relief rolls. Table 8
shows the distribution of districts which operated adult
education programs under this act. Third class districts
operated the greatest number of programs. Eleven of the
14 districts shown were class 3 districts. Areas 1 and 3
each contained one district of the fourth class. Area 2
contained one district of the second class.

Amounts of money received per pupil were consider—
ably larger than that received under other acts reviewed.
Table 9 shows these amounts and numbers of pupils enrolled
by legal classifications of districts and geographic areas.
The amounts range from $94.93 received by a class 3 dis-
trict during fiscal year 1962 to $1231.78 per pupil by
another class 3 district during fiscal year 1965. Although
one fourth class district apparently discontinued the pro—
gram after fiscal 1965 school year, the table shows a yearly
increase of both money and pupils. Sixty-two students en—
rolled in 1962-63. In 1965-66 there were 1342 students

enrolled. Michigan public school district adult programs

 

 

79

 

 

 

 

 

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80

 

 

 

 

 

 

 

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81

received a total of $618,928.00 in 1965-66 under this act
according to districts responding to the survey question-
naire.

The Area Redevelopment Act8 was another act under
which funds were reported received. This act authorizes
assistance to state vocational education agencies to meet
occupational and training needs of individuals residing in
redevelopment areas. The appropriation is made to the
U.S. Department of Labor, and amounts necessary for train—
ing are transferred to the Department of Health, Education,
and Welfare for payment to states for the costs of train—
ing programs.

One district reported receiving $37,679.00 under
this act during the 1964—64 school year. This was a third
class district in Area 3. A total of 94 students were re-
ported trained, 65 during the 1964-65 school year and 29
during 1965-66, with an average funding per student of
$400.84. Although application of the act is comparatively
limited with regard to adult education programs, these data
were included here as a minor result of the questionnaire

survey.

 

 

8Area Redevelopment Act, Public Law 27, 87th Cong.,
May 1, 1961, 75 Stat. 59.

 

‘51—!—
82

State and Federal Funds

 

The influence of federal funding in regard to the
promotion of public school district adult education pro-
grams was compared to that of state aid. Administrators
were requested to respond to a checklist of promotional
factors and to check those three which, in their opinions,
were most productive in promoting the programs under their
supervision. Table 10 compares the frequency with which
these two items, federal funds and state aid, were checked
by administrators of federally funded and non-federally
funded districts. Only 38 administrators from districts
receiving federal funds checked such funds as a major pro-
motional factor. This was 50.00 per cent of this group.
Forty-nine administrators of the federally funded group
checked state aid (64.47 per cent of the federally funded
districts). In districts not receiving federal funds, 20
administrators or 29.85 per cent checked state aid. State
aid was considered by 48.25 per cent of the total population
to be a major factor in the promotion of adult education.
Federal funds were considered thus by only 27.27 per cent.
There were 1.67 times as many administrators who considered

state aid important to program development as there were

 

who considered federal aid important.
Table 11 compares the relative importance of state
and federal funding to adult programs by legal classifi—

cations of districts. Administrators of both the second

 

 

83

 

 

 

 

TABLE 10. Comparative influence of state and federal funds
in promotion of adult education programs between
federally and non—federally funded districts.

Federally Non—Federally
Funded Funded Total
Districts Districts
Total N=76 N=67 N=l43
State Funds 64.47% 29.85% 48.25%
N=49 N=20 N=69
Federal Funds 50.00% 1.49% 27.27%
N=38 N=l N=39

 

 

 

 

 

TABLE 11. Comparative influence of state and federal funds
in promotion of adult education programs between
legal classifications of school districts.

Class Class Class Intermed.
2 3 4 Class Total

Total N=2 N=71 N=67 N=3 N=l43

State Funds 100.00% 61.97% 31.34% 66.67% 48.25%

N=2 N=44 N=21 N=2 N=69

Federal Funds 50.00% 26.76% 23.88% 100.00% 27.27%

N=l N=19 N=l6 N=3 N=39

 

 

 

 

84

class districts checked state funds, while only one checked
federal. There were 61.97 per cent of class 3 district ad—
ministrators who marked state funds compared to 26.76 per
cent who checked federal funds. In class 4 districts 31.34
per cent checked state funds, 23.88 per cent checked federal.
All three intermediate school districts indicated the im—
portance of federal monies to their program promotion and
two indicated state aid was important. The data revealed
that while state funds were highly important to all classes
of districts, federal funds are indicated to be the most
important of the two sources for intermediate school dis-
tricts.

Table 12 compares these two sources of funds by
geographic areas of population density. Sixty per cent of
the administrators in Area 1 checked state funds, 39.73 per
cent in Area 2, and 54.29 per cent in Area 3. Federal
funds were indicated as important by 25.71 per cent of the
administrators in Area 1, 24.86 per cent in Area 2, and
34.29 per cent in Area 3. State aid is shown to be most
important in the two extremes of population density, Area 1
and Area 3. A greater number of administrators in the most
sparcely populated area considered federal funds important
to program promotion that in either the median area of popu—

lation density or the highly populated area.

 

 

 

85

Table 12. Comparative influence of state and federal funds
in promotion of adult education programs between
geographic areas.

 

 

 

 

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43
State funds 60.00% 39.73% 54.29% 48.25%
N: 21 N= 29 N= 19 N= 69

Federal funds 25.71% 24.86% 34.29% 27.27%
N: 9 N: 18 N= 12 N= 39

 

 

 

86

State and Local Revenues

 

Table 13 compares the data for state aid, student
fees, and local taxes which supported public school dis-
trict adult education programs in Michigan during the fis-
cal years 1961 through 1966, except for 1965 when these
data were not available. During 1965, state aid was af—
forded the local school districts by action of the state
legislature which redefined "membership."9 The data show
that state aid represented the smallest contribution of
the three revenue sources during these years. Local taxes
contributed larger amounts, and student fees consistently
larger amounts than the other two sources. Although total
costs in fiscal 1966 rose by approximately one million
dollars above 1964, student fees were reduced by $248,699.00
and the portion of the costs supported by local taxes in—
creased by $365,216.00. The allotment of state aid pro-
vided an explanation for reduced student fees, because
federal programs do not support courses previously funded
by state or local sources. Increases in amounts afforded
by local taxes may have been due to broadened academic
interests on the part of citizens enrolling, but an unde-
termined influence on expenditure of local tax monies must
be accredited also to implementation of federal education

acts.

 

9Act #312 of Public Acts of 1957, as amended by
Act #285, Public Acts of 1964, being sections 388.611 to
388.652, C.L. 1948.

 

87

TABLE 13. Comparison of sources of revenue for adult edu—
cation in Michigan for the years 1960—1966.

 

 

 

Sources Year Amount Percent
State Aid 1960-61* None —
Student Fees 1960—61 $1,316,113.11 52.8
Local Taxes 1960-61 1,178,071.63 47.2
Total Costs 1960-61 $2,494,184.74 100.0
State Aid 1961-62* None —
Student Fees 1961-62 $1,334,936.18 53.1
Local Taxes 1961-62 1,176,515.96 46.9
Total Costs 1961-62 $2,511,452.14 100.0
State Aid 1962-63** None -
Student Fees 1962-63 $1,398,474.92 55.9
Local Taxes 1962-63 1,101,992.55 44.1
Total Costs 1962-63 $2,500,467.47 100.0
State Aid 1963-64** None -
Student Fees 1963-64 $1,602,029.92 69.3
Local Taxes 1963-64 711,157.19 30.7
Total Costs 1963—64 $2,313,187.11 100.0
State Aid 1965—66*** $ 887,500.62 26.8
Student Fees 1965—66 1,353,330.12 40.8
Local Taxes 1965-66 1,076,373.30 32.4
Total Costs 1965-66 $3,317,204.04 100.0

 

*State of Michigan, Superintendent of Public In-
struction, "Public School General Adult Education, 1961—
1962," Lansing: Bulletin 512, 1962, page 3.

 

**State of Michigan, Superintendent of Public In—
struction, "Public School General Adult Education, 1963—
1964," Lansing: Bulletin 512, 1964, page 2.

 

***State of Michigan, Superintendent of Public in—
struction, "Public School General Adult Education, 1965—
1966," Lansing: Bulletin 512, 1966, page 2.

 

88

Table 14 reveals the numbers and percentages of
K - 12 grade school districts serving adults during the
fiscal years 1958 through 1966 in relation to state aid.
It would appear that state aid greatly influences the
number of districts providing adult education programs in
Michigan. Forty-two districts were added to those in Opera—
tion between fiscal 1964 and 1966. However, Opinions of
administrators concerning the influence of federal legis-
lation indicate that federal legislation is responsible
for some of the increase in both amounts of local funds
spent for adult education and the number of districts
providing adult education programs.

Federal Influence on Local
Tax Expenditures

 

 

Table 15 compares federal influence on expenditures
of local taxes based on the Opinions of administrators.
The data reveals that there were 48.68 per cent of the ad—
ministrators in districts receiving federal funds who re-
ported increased expenditure of local funds and 2.99 per
cent in non-federally funded districts. The total number
of districts in which increased expenditure of local tax
monies were reported was 39 districts (27.27 per cent of
all respondents). Increased use of local taxes for adult
education was reported by two districts not receiving fed—

eral funds.

89

TABLE 14. PrOportion of K-12 grade districts serving adults
during the past eight years.

 

 

K Through 12 Adult Districts

 

 

Year Total Number

of Districts Number Per Cent of Total
1957—58 543 220 40.5*
1958-59 545 208 38.1
1959-60 548 159 27.9**
1960-61 557 154 27.6
1961-62 555 149 27.0
1962—63 532 155 29.1
1963-64 525 143 27.2***
1965-66 543 185 34.0

 

*State aid reduced this year by one-third.
**State aid completely withdrawn this year.

***State aid reinstated this year.

 

90

Table 15. Comparison Of federal legislative influence on
the expenditure Of local funds between federally
and non-federally funded districts in the opinion
Of administrators.

 

 

 

 

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased 48.68% 2.99% 27.27%
expenditures N= 37 N= 2 N: 39
(2) Decreased 0.00% 1.49% 0.70%
expenditures N= 0 N: l = 1
(3) Unchanged
expenditures 46.05% 91.04% 67.13%
N: 35 N= 61 = 96
(4) NO Opinion 5.26% 4.48% 4.90%

= 4 = 3 = 7

 

91

Table 16 compares legal classifications Of school
districts in this regard. Both second class districts in
the population reported increased expenditures. The great—
est number Of districts in classes 3, 4, and intermediate
which reported increased expenditures Of local funds were
third class districts. This represented 36.62 per cent Of
that group, compared to 10 fourth class districts (14.93
per cent Of that group). One Of the intermediate districts
reported increased local expenditures.

The data is compared between geographic areas Of
the state in Table 17. Fifteen of the districts reporting
increased expenditures were found to be in Area 1, the most
densely populated area,compared to 14 in Area 2 and 10 in
Area 3. The greatest influence of federal legislation on
expenditure Of local funds was found to be in first class
districts. There was 42.86 per cent of Area 1 districts
reported such increases, compared to 19.18 per cent in

Area 2 and 28.57 per cent in Area 3.

Federal Influence on the Total
Adult Education Program

Table 18 compares federal influence on the total
adult school program. Twenty—four administrators in dis—
tricts receiving federal funds (31.58 per cent Of that
group) reported that the adult education program under their
supervision had been initiated becuase federal funds were

made available. One administrator in a district not

92

 

 

 

 

Table 16. Comparison of federal legislative influence on
the expenditure of local funds according to legal
classification of districts in the Opinion of ad-
ministrators.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 100.00% 36.62% 14.93% 33.33% 27.27%

expenditures N= 2 N: 26 N= 10 = l N: 39

(2) Decreased 0.00% 1.41% 0.00% 0.00% 0.70%

expenditures N= 0 = 1 N: 0 = 0 N: l

(3) Unchanged 0.00% 61.97% 76.12% 33.33% 67.13%
N: 0 N: 44 N= 51 = l N: 96

(4) NO Opinion 0.00% 0.00% 8.96% 33.33% 4.90%
N: 0 = 0 N: 6 = l N: 7

 

93

 

 

 

 

Table 17. Comparison Of federal legislative influence on
the expenditure Of local funds between geo—
graphic areas in the Opinion of administrators.

Area 1 Area 2 Area 3 Total

Total N: 35 = 73 N= 35 N=l43

(1) Increased 42.86% 19.18% 28.57% 27.27%

expenditures N= 15 N= 14 N= 10 N= 39

(2) Decreased 2.86% 0.00% 0.00% 0.70%
expenditures = l = 0 N= 0 N: .1

(3) Unchanged 51.43% 75.34% 65.71% 67.13%
N: 18 N= 55 N= 23 N= 96

(4) NO Opinion 2.86% 5.48% 5.71% 4.90%
= l = 4 N: 2 N: 7

 

94

 

 

 

 

Table 18. Comparison Of federal legislative influence on
district adult education programs between fed—
erally and non—federally funded districts in
the Opinion of administrators.

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N—143
(1) Program initiated 31.58% 1.49% 17.48%
because federal N= 24 N= 1 N: 25
funds available

(2) Program remained 7.89% 1.49% 4.90%

in Operation due N= 6 = 1 = 7
to federal funds

(3) Program previously 48.68% 4.48% 27.97%

in Operation and N: 37 = 3 N: 40
increased fulfill-
ment of community
needs because Of
federal funds
(4) NO Opinion 17.11% 89.55% 51.05%
N: 13 N= 60 N= 73

 

95

receiving federal funds reported his program was initiated
for that reason. Six federally funded districts were re-
ported tO have remained in Operation because Of federal
funds. One not currently receiving such funds also reported
the same situation. Forty districts reported increased
fulfillment Of community adult education needs because Of
federal education legislative enactments. Of the total

143 districts, seven or 4.90 per cent remained in Operation
for this reason, and 40 or 27.97 per cent increased their
fulfillment Of community adult education needs.

Tables 19 and 20 compare the data by legal classi-
fications Of school districts and geographic areas. The
two second class districts were reported to have increased
their fulfillment Of community adult education needs. In
class 3, the data show 13 districts (18.31 per cent Of that
class) initiated programs because Of federal funds. Seven
districts in class 3 (9.86 per cent Of that class) were re-
ported tO have remained in Operation due to federal funding.
Ten class 4 districts (14.93 per cent Of that class) and
two of the intermediate class (66.67 per cent) were initi—
ated due to that reason. One intermediate school district,
previously in Operation, increased fulfillment Of adult
education needs because Of federal funds. Nine districts
in Area 1 (25.71 per cent Of Area 1 districts) and 9 in
Area 3 (25.71 per cent Of Area 3 districts) were reported

to have been initiated because of the availability of

96

 

 

 

 

Table 19. Comparison Of federal legislative influence on
district adult education programs according to
legal classification in the Opinion of adminis-
trators.

Class Class Class Intermed.
2 3 4 Class Total
Total N: 2 N: 71 N= 67 N= 3 N=l43
(1) Program initi- 0.00% 18.31% 14.93% 66.67% 17.48%
ated because = 0 = 13 N= 10 N= 2 N= 25
federal funds
available

(2) Program re- 0.00% 9.86% 0.00% 0.00% 4.90%
mained in = 0 = 7 = 0 = 0 = 7
Operation due
to federal
funds

(3) Program pre— 100.00% 42.25% 10.45% 33.33% 27.97%
viously in N: 2 N: 30 = 7 = 1 N= 40
Operation and
increased ful-
fillment of
community
needs because
of federal
funds

(4) NO Opinion 0.00% 33.80% 73.13% 0.00% 51.05%

= 0 N: 24 = 49 = 0 N: 73

 

97

 

 

 

 

Table 20. Comparison of federal legislative influence on
district adult education programs according to
geographic areas in the Opinion of administrators.

Area 1 Area 2 Area 3 Total
Total N: 35 N= 73 N= 35 N=143
(1) Program initi— 25.71% 9.59% 25.71% 17.48%
ated because = 9 = 7 N: 9 = 25
federal funds
available

(2) Program remained 8.57% 4.11% 2.86% 4.90%
in Operation due N= 3 = 3 = l = 7
to federal funds

(3) Program pre- 40.00% 27.40% 17.14% 27.97%

viously in N= 14 N= 20 = 6 N= 40
Operation and
increased fulfull-
ment Of community
needs because of
federal funds
(4) NO Opinion 31.43% 58.90% 54.29% 51.05%
= 11 N: 43 N= 19 N: 73

 

98

federal funds. Seven were reported initiated in Area 2
(9.58 per cent) for this reason. Three districts in Area 1
(8.57 per cent), three in Area 2 (4.11 per cent), and one
in Area 3 (2.86 per cent) remained in Operation due to the
same cause. The number of districts reported to have in-
creased fulfillment Of community adult education needs, as
would be expected, was considerably greater. Of the 40
thus reported, 14 were in Area 1, 20 in Area 2, and 6 in
Area 3.

The greatest impact Of federal legislation in in-
fluencing expenditure Of local tax monies was in class 3
districts and in geographic Area 1 as judged by numbers Of
districts affected. The same is true of the promotion Of
adult programs in the initiation of new ones and continued
Operation and expansion of Older ones.

Marginality Of
Adult Education

 

 

Adult education facilities Of the public school
districts continued to retain their traditional position
Of marginality. Financial data collected by means of the
standard reporting form AE-2 (see Appendix A) indicate
little change in this regard. Table 21 compares gross
adult education expenditures to gross public school ex—
penditures over a seven-year period beginning fiscal year
1960. According to these data adult education expenditures

have never reached one-half of one per cent Of gross public

99

 

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Ixm ucmnuso mmonm umchmm mmusuHocmmxm cOHpmospm pHSOw mmOHm mo COmHnmmEOO .HN mHmNB

100

school expenditures. During fiscal years 1962 through 1964,
when gross expenditures for public schools increased stead-
ily from $611 million to over $737 million, expenditures

for adult education decreased. In fiscal 1966 gross adult
education expenditures had not attained the percentage of
gross expenditures Of 1960 or .406 per cent. In fiscal
1966, gross adult education expenditures were .361 per cent

Of gross public school expenditures.

Summary

Since the use of declarative hypotheses in this
investigation precludes statistical inference, it would
appear that Hypothesis I has been substantiated. Federal
legislation has caused increased amounts of local tax monies
to be directed to public school district adult education
programs in Michigan. The number Of districts so affected
is the concern of this investigation. Increased expenditure
Of local tax monies was reported by 27.27 per cent Of the
143 districts surveyed while 67.13 per cent were not affect-
ed. Only 48.68 per cent of the districts which implemented
federal programs, however, reported such influence. There
were exactly twice as many third class districts which re-
ported increases in expenditure of local tax funds as there
were in the total Of all other classes. Fifteen of these
districts were in the densely populated area of the state.
Fourteen were in the less densely populated area, ten were

in the sparcely populated area.

101

The research revealed three general types of legis—
lation providing funds for public school district adult
education. These were state aid for high school completion,
federal adult basic education acts, and federal vocational
education acts. All three types contain provision for
basic and literacy education Of adults. In the Opinion Of
administrators state aid is the most productive factor pro-
moting adult education programs of the three governmental
sources. However, 25 programs were reported to have been
initiated because of federal funds. Seven district pro-
grams remained in Operation and 40 increased fulfillment of
community adult education needs because of federal funds.
Federal legislation directly or indirectly promoted adult

education in 49.05 per cent Of the districts.

Administration

 

This section contains data obtained from histori-
cal records and the questionnaire survey which pertain to
the administration of public school district adult educa—
tion programs in Michigan. The data are presented under
three major subdivisions: (1) data which are related to
numbers Of administrators employed and time allotted for
administrative duties, (2) data which are related to adminis-
trative and organizational structure of programs, and (3)
data which concern the promotion of adult education in the

local district.

102

Professional Leadership in
Adult Education Programs

 

 

Superintendents in Michigan public schools either
personally assume the responsibilities of administration
for adult education programs or delegate them to staff
members, of whom over 69 per cent devote less than one-half
time in administration and supervision Of adult education
programs. More than 48 per cent spend less than one-quarter
time, and about 10 per cent devote no time at all for ad—
ministrative duties.

The administration of adult education and the imple-
mentation Of established policies for programs have tradi-
tionally received minimal attention. Although the promotional
advantages Of a full-time administrator were indicated by
over 30 per cent of the districts' administrators surveyed
(Table 41), only 21 per cent of the districts have one or
more administrators in charge Of adult programs. This is
in spite of the fact that only 7.69 per cent of the dis—
tricts responding to the questionnaire survey indicated a
lack Of school board interest to be a serious barrier re-
tarding program development. Table 22 shows the propor-
tionate amount of time allotted to adult education by
administrators during the five year period. The table
reveals a negative trend from 1961 through 1964 with only
slight variations in the divisions Of time allotted. In

the fiscal year 1966 a pronounced increase in time allotted

TABLE 22.

Professional leadership provided.

 

 

 

 

Time Allotted 1961—62 1962—63 1963—64 1965-66
More than
one person 8.39% 5.13% 5.79% 11.35%
N=l2 N=8 N=8 N=21
One person
only 4.19% 11.04% 9.42% 10.26%
N=6 N=17 N=13 N=19
One-half to
one person 9.79% 9.10% 9.42% 9.19%
N-l4 N=14 N=13 N=17
One-quarter tO
one-half time 13.28% 11.04% 13.04% 20.54%
N=19 N=17 N=18 N=38
Less than one—
quarter time 49.65% 51.95% 52.17% 40.00%
N=71 N=80 N=72 N=74
NO time
allowed 14.68% 11.69% 10.14% 8.65%
N=21 N=18 N=14 N=16
Total number
reporting N=l43 N=154 N=138 N=185

 

104

is indicated. The number Of districts employing more than
one administrator increased from 8 to 15 or more than 61

per cent over 1964. This was 11.35 per cent Of the districts
reporting in 1965-66. The number Of districts employing one
full-time administrator increased by approximately 46 per
cent. The total number of districts reporting increased

and the increase was reflected in all divisions Of time
allotment, but the number which devoted no time for adminis—
trative duties actually decreased.

Federal Influence on the
Employment Of Administrators

 

 

Increases in the total number Of administrators
and supervisors employed in the fiscal year 1966 were due
at least in part to federal legislative influence. Table 23
substantiates this fact by comparing that influence in the
employment Of administrators between federally and non-
federally funded districts. A total Of 28 districts in
both categories was reported to have employed administrators
or supervisors due to federal adult education legislation.
This number could have accounted for more than the in—
creases shown in the previous table. Almost 20 per cent
Of the districts surveyed reported such increases due to
federal activity at the local level.

Table 24 presents the data according to legal classi-
fications of school districts. Both second class districts

reported increases and all three of the intermediate districts

105

Table 23. Comparison Of federal legislative influence on
the total number Of administrators employed be—
tween federally and non-federally funded dis-

 

 

 

 

tricts.
Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased number 34.21% 2.99% 19.58%
N: 26 = 2 N: 28
(2) Decreased number 0.00% 0.00% 0.00%
N: 0 = 0 = 0
(3) Unchanged 59.21% 91.04% 74.13%
N: 45 N= 61 N=106
(4) NO Opinion 6.58% 5.97% 6.29%

N: 5 = 4 = 9

 

106

 

 

 

 

Table 24. Comparison of federal legislative influence on
the total number of administrators employed in
adult education programs by legal classifications
Of school districts.

Class Class Class Intermed.
2 3 4 Class Total

Total N— 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 100.00% 21.13% 11.94% 100.00% 19.58%

number N: 2 N: 15 = 8 N: 3 N: 28

(2) Decreased 0.00% 0.00% 0.00% 0.00% 0.00%

number N: 0 = 0 = 0 N= 0 = 0

(3) Unchanged 0.00% 77.46% 76.12% 0.00% 74.13%
N: 0 N: 55 N= 51 N= 0 N=106

(4) NO Opinion 0.00% 1.41% 11.94% 0.00% 6.29%
N: 0 = 1 = 8 N: 0 = 9

 

107

added to their staff. The greatest number Of districts
reported to have employed administrators because of federal
programs were third class districts. Fifteen class 3 dis-
tricts and 8 class 4 districts were reported to have in-
creased their administrative staff for this reason.

Table 25 compares the number of districts by geo-
graphic areas. Federal programs influenced 6 districts
in Area 1 to employ more administrators, 14 in Area 2, and
8 in Area 3. The greatest impact Of federal enactments on
increasing the number of administrators and supervisors was
in class 3 districts and in Area 2.

Future Plans to Employ
Administrative Staff

 

 

Continued increases in the number of administrators
and supervisors to be employed by district adult education
programs in Michigan are indicated because Of federal legis-
lation. School Officials were asked to check one Of four
responses listed which best described current plans concern-.
ing how employment Of administrative staff in the future
was affected. Table 26 compares those responses between
federally and non-federally funded districts. Fourteen
districts indicated that they plan to employ more in the
future because of federal programs. Two of these districts
were not currently implementing such programs.

Table 27 compares responses by legal classification.

Increased future employment was indicated in class 3 and

108

Table 25. Comparison Of federal legislative influence on
the total number of administrators employed in
adult education programs by geographic areas.

 

 

 

 

Area 1 Area 2 Area 3 Total

Total N: 35 = 73 N= 35 N=l43
(1) Increased 17.14% 19.18% 22.86% 19.58%
numbers N= 6 = 14 = 8 N: 28

(2) Decreased 0.00% 0.00% 0.00% 0.00%
numbers N= 0 = 0 = 0 = 0

(3) Unchanged 77.14% 75.34% 68.57% 74.13%
N: 27 N= 55 N= 24 N=106

(4) NO Opinion 5.71% 5.48% 8.57% 6.29%
N: 2 = 4 = 3 = 9

 

109

 

 

 

 

Table 26. Comparison Of federal legislative influence on
future plans to employ more administrators in
adult program between federally and non-federally
funded districts.

Federally Non—Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Will employ one 15.79% 2.99% 9.79%
or more soon N= 12 N= 2 = 14
(2) NO plans to 43.42% 16.42% 30.77%
employ more = 33 N= 11 N= 44
(3) Plans not 26.32% 70.15% 46.85%
affected by N: 20 = 47 N= 67
federal pro—
grams
(4) NO Opinion 14.47% 8.96% 11.89%
N= 11 = 6 N: 17

 

110

 

 

 

 

Table 27. Comparison of federal legislative influence on
future plans to employ more administrators be-
tween districts according tO legal classifications.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 = 67 N= 3 N=l43

(1) Will employ 0.00% 12.68% 7.46% 0.00% 9.79%

one or more = 0 = 9 N: 5 N: 0 N: 14
soon

(2) NO plans to 100.00% 38.03% 20.90% 33.33% 30.77%

employ more N: 2 = 27 = 14 N= 1 N: 44

(3) Plans not 0.00% 43.66% 52.24% 33.33% 46.85%

affected by N: 0 N: 31 N= 35 N= 1 N: 67
federal pro-
grams
(4) NO Opinion 0.00% 5.63% 17.91% 33.33% 11.89%
= O = 4 N: 12 = l N: 17

 

111

class 4 districts. Nine districts in the former and 8 in
the latter planned employment Of one or more members to
their staff because of federal provisions. Table 28, which
compares responses by geographic areas, show that employment
increases are almost equally distributed between the three
areas. Five districts in Area 1, 5 in Area 2, and 4 in Area
3 revealed such plans.

Administrative and
Organizational Structure

 

 

Changes in the number of administrators employed
can be expected to be accompanied by appropriate changes
in the administrative and organizational structure of pub-
lic school district adult education programs. As responsi-
bilities for various aspects Of administration are delegated
to new individuals employed, readjustment in some degree
of the organizational structure Often develops. Table 29
is intended tO reveal the number of districts in which
changes Of the administrative structure have occurred due
to federal legislation. The districts are compared between
federally funded districts and districts not receiving fed-
eral funds. A total of 13 districts reported changes (9.09
per cent of the districts surveyed). Thirty—two (22.38 per
cent of the districts) reported some, but little change.
As would be expected, the greatest per cent Of change occur—
red in funded districts. Twelve funded districts (15.79

per cent Of such districts) reported considerable change in

112

 

 

 

 

Table 28. Comparison of federal legislative influence on
the future plans of districts to employ more
administrators in adult program according to
geographic areas.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Will employ one 14.29% 6.85% 11.43% 9.79%

or more soon N= 5 N: 5 N: 4 N= 14
(2) NO plans to 28.57% 31.51% 31.43% 30.77%
employ more N: 10 N= 23 N= 11 N= 44

(3) Plans no affected 57.14% 42.47% 45.71% 46.85%
by federal pro- N= 20 N= 31 N= 16 N= 67
grams

(4) NO Opinion 2.86% 16.44% 11.43% 11.89%

N: l N: 12 N= 4 N: 17

 

113

 

 

 

 

Table 29. Comparison of federal legislative influence on
the adminstrative structure Of adult education
programs between federally and non-federally
funded districts.

Federally Non—Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Administrative 15.79% 1.49% 9.09%
structure changed N= 12 N= 1 = 13
considerably

(2) Changed little 39.49% 2.99% 22.38%

= 30 N= 2 N: 32

(3) Unchanged 36.84% 89.55% 61.54%

N: 28 N= 60 = 88
(4) NO Opinion 6.58% 5.97% 6.29%
N: 5 N: 4 = 9

 

114

the administrative structure. Thirty (39.49 per cent Of
federally funded districts) reported some, but little
change. Twenty-eight districts receiving funds (36.84 per
cent of such districts) remained unchanged as to adminis—
trative structure compared to 60 districts (89.55 per cent)
Of the non-funded districts.

Table 30, by comparing administrative structural
changes between legal classifications Of districts, reveals
that the greatest percentages Of districts within the classi-
fications reporting changes were class 4, class 3, and inter-
mediate districts in ascending order. One intermediate
district (33.33 per cent Of such districts) reported con-
siderable change. Nine class 3 districts (12.68 per cent)
reported considerable change, and 3 Of the class 4 districts
(4.48 per cent of that class) also reported the same.

Table 31, by showing comparisons according to geo-
graphic areas, reveals that Of those districts indicating
considerable change, 2 were in Area 1, 6 were in Area 2,
and 5 were in Area 3. The area in which the greatest
percent Of districts were contained that showed such change
was Area 3.

Comparisons Of federally and non-federally funded
districts concerning changes in the organizational struc—
ture Of adult programs are shown in Table 32. Seventeen
(22.37 per cent) Of funded districts reported considerable

change. Twenty-nine (38.16 per cent) of such districts

115

 

 

 

 

Table 30. Comparison Of federal legislative influence on
the administrative structure Of adult education
programs between districts according tO legal
classifications.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Changed con— 0.00% _12.68% 4.48% 33.33% 9.09%

siderably N= 0 N: 9 N: 3 N= 1 N= 13

(2) Changed 100.00% 29.58% 10.45% 66.67% 22.38%

little N= 2 N: 21 N= 7 N: 2 N: 32

(3) Unchanged 0.00% 53.52% 74.63% 0.00% 61.54%
N: 0 N: 38 N= 50 N= 0 N: 88

(4) NO Opinion 0.00% 2.82% 10.45% 0.00% 6.29%
N: 0 N: 2 N= 7 N= 0 N: 9

 

116

 

 

 

 

Table 31. Comparison Of federal legislative influence on
the administrative structure Of adult education
programs according to geographic areas.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Changed 5.71%_ 8.22% 14.29% 9.09%

considerably N= 2 = 6 N: 5 N: 13

(2) Changed little 37.14% 15.07% 22.86% 22.38%

N: 13 N= 11 N= 8 N: 32
(3) Unchanged 51.43% 68.49% 57.14% 61.54%
N= 18 N= 50 N= 20 N= 88
(4) NO Opinion 5.71% 6.85% 5.71% 6.29%
N: 2 = 5 N: 2 N: 9

 

117

 

 

 

 

Table 32. Comparison Of federal legislative influence on
the organizational structure of adult education
programs between federally and non-federally
funded districts.

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Changed 22.37% 1.49% 12.59%
considerably N= 17 N= 1 N: 18
(2) Changed
little 38.16% 2.99% 21.68%
(3) Unchanged 30.26% 88.06% 57.34%
N= 23 N= 59 N= 82
(4) NO Opinion 7.89% 7.46% 7.69%
N: 6 N-= 5 N: 11

 

 

118

reported some, but little, change in organization. A
total of 49 (34.27 per cent) of all districts were affected
to some degree by federal legislation in the organizational
structure Of their adult education programs.

Table 33, which compares districts reporting on
such change according to legal classifications, shows that
considerable change occurred in 10 third class districts,
in 7 fourth class districts, and in 1 intermediate dis-
trict. Both second class districts had some change.
Twenty-one class 3 districts and 7 class 4 districts also
reported some change.

Table 34 compares the data by geographic area.
The greatest number Of districts in any Of the three areas
reported to have been affected by organizational change
was in Area 2. A total of 21 districts was influenced to
some extent. Eight Of these reported considerable organi-
zational changes. Fifteen districts in Area 1 were affected,
and four of these reported considerable change. In Area 3,
13 districts reported change, and six were changed consider-
ably.

Promotion Of Public
School Adult Education

 

 

The promotion Of public school adult education is
a function Of leadership currently shared by administrators
at local, intermediate, state, and federal levels. In this

subdivision of the study regarding administration, several

119

 

 

 

 

Table 33. Comparison of federal legislative influence on
the organizational structure of adult education
programs according to legal classifications.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Changed con— 0.00% 14.08% 10.45% 33.33% 12.59%

siderably N= 0 N: 10 N= 7 = l = 18

(2) Changed 100.00% 29.58% 10.45% 33.33% 21.68%

little N= 2 N: 21 N= 7 = 1 N: 31

(3) Unchanged 0.00% 52.11% 65.67% 33.33% 57.34%
N: 0 N: 37 N= 44 = l N= 82

(4) NO Opinion 0.00% 2.82% 13.43% 0.00% 7.69%
N: 0 N: 2 N: 9 = 0 N: 11

 

120

 

 

 

 

Table 34. Comparison of federal legislative influence on
the organizational structure Of adult education
programs according to geographic areas.

Area 1 Area 2 Area 3 Total-

Total N: 35 N= 73 N= 35 N=l43

(1) Changed 11.43% 10.96% 17.14% 12.59%

considerably N= 4 N: 8 N= 6 N: 18

(2) Changed little 31.43% 17.81% 20.00% 21.68%

N= 11 N= 13 N= 7 N= 31
(3) Unchanged 48.57% 63.01% 54.29% 57.34%
N= 17 N= 46 N= 19 N= 82
(4) NO Opinion 5.71% 8.22% 8.57% 7.69%
N: 2 N: 6 N: 3 N: 11

 

121

aspects concerning program promotion are investigated to
determine the extent of influence which federal education

acts have had on the local program.

Adoption of policy statements.-—The adoption Of

 

policy statements, or statements Of policies to guide ad-
ministrative practice in public school adult education
programs, is shown to have some relationship to federal
funding. Table 35 is a comparison Of the concerns contained
in policy statements between districts receiving federal
funds and others. Funded districts exceed districts not
engaged in federal education programs in both the number
and percentages Of items checked. Federally funded dis-
tricts exceed others by less than one per cent of their
number in advocating completely tax—supported adult educa~
tion programs.

Table 36 compares policy statements between legal
classifications Of districts. All classifications of dis-
tricts responding to the questionnaire had adopted a policy
statement containing one or more Of the items on the check-
list. Class 3 districts contained the greatest number of
written statements and involved the greatest number Of items
listed. The data reveal that the items most Often mentioned
in policy statements were student fees and finances. Financ-
ing is mentioned only slightly less Often than student fees

by both class 3 and class 4 districts.

122

Table 35. Comparison Of policy statements concerning
adult education by federally funded and fed-

erally non-funded districts.

 

 

 

 

 

 

 

 

Federally Non—Federally
Funded Funded

Districts Districts Total
Total N: 76 N= 67 N=l43
Concerns 50.00% 19.40% 35.66%
philisophy N= 38 N= 13 N= 51
Concerns 59.21% 43.28% 51.75%
finances N= 45 N= 29 N= 74
Concerns 55.26% 47.76% 51.75%
student fees N= 42 N= 32 N= 74
Advocates tax— 6.58% 5.95% 6.29%
supported N= 5 N: 4 N: 9
programs
Controls type 38.16% 22.39% 30.77%
Of program to N: 29 N= 15 N= 44

be supported

 

 

123

 

 

 

 

 

 

 

 

Table 36. Comparison Of policy statements concerning adult
education by legal size of school district.
Class Class Class Intermed.

2 3 4 Class Total
Total N: 2 N: 71 = 67 N= 3 N=l43
Concerns 0.00% 45.07% 28.36% 0.00% 35.66%
philosophy = 0 N= 32 N= 19 = 0 N: 51
Concerns 100.00% 64.79% 35.82% 66.67% 51.75%
finances N= 2 N: 46 N= 24 = 2 N: 74
Concerns 50.00% 67.61% 37.31% 0.00% 51.75%
student fees N: l N: 48 N= 25 = 0 N= 74
Advocates tax- 0.00% 5.63% 7.41% 0.00% 6.29%
supported programs N= O N: 4 N: 5 N= 0 N: 9
Controls type 0.00% 28.17% 31.34% 100.00% 30.77%
Of program to N: 0 N: 20 N= 21 N= 3 N: 44

be supported

 

124

Table 37 relates the comparison of written policies
to geographic areas Of the State. Area 1 contains the
greatest percentages for all items listed except the advo~
cation Of tax-supported programs. Area 2 contains the
greatest number of statements, and six of the districts in
Area 2 advocate tax-supported programs compared to one in
Area 1 and 2 in Area 3. The greatest preoccupation with
educational philosphy is shown to be in Area 1, although
that area contains a lesser number of districts. There
was 40.00 per cent Of the policy statements in Area 1
which concerned philosophy, 34.25 per cent in Area 2, and
34.29 per cent in Area 3.

Administrative use of advisory committees.--The use

 

Of advisory committees tO assist administrators in program
promotion has Often been recommended by authorities. Of

the population responding to the questionnaire, 33 per cent
indicated inadequate knowledge of community needs was a
major deterrent to the develOpment Of their program. Approxi-
mately 28 per cent indicated that competing educational agen-
cies also hindered program development (see Table 44).

Since advisory committees have been said to provide an ex—
cellent method of determining community needs and establish-
ing coordination between the public schools and community
agencies concerned with educational improvement and Oppor—
tunity, it appears to be significant that only 9 of the

35 districts having committees listed such committees as

125

 

 

 

 

 

 

 

 

Table 37. Comparison by area of public school district

policy statements concerning adult education.
Area 1 Area 2 Area 3 Total
Total N: 35 N= 73 N= 35 N=l43
Concerns 40.00% 34.25% 34.29% 35.66%
philosophy N= 14 N= 25 N= 12 N= 51
Concerns 60.00% 50.68% 45.71% 51.75%
finances N= 21 = 37 N= 16 N= 74
Concerns 60.00% 52.05% 42.86% 51.75%
student fees N= 21 N= 38 N= 15 N= 74
Advocates tax— 2.86% 8.22% 5.71% 6.29%
supported programs N= 1 N: 6 N: 2 N: 9
Controls type Of 42.86% 20.55% 40.00% 30.77%
program to be N= 15 N= 15 N= 14 = 44

supported

 

126

a major promotional factor (see Table 41). It may be that
the use Of advisory committees is not as productive in
practice as in theory. Further research is needed to de-
termine if appropriate use of committee efforts is being
made. Of the 143 districts surveyed 105 districts had no
advisory committee. The 38 existing committees are compared
in Table 38 between federally funded and non-federally funded
districts. Districts receiving federal funds utilize a
slightly higher number of advisory committees than those
not receiving them. Among the 76 funded districts, 23
(30.26 per cent) have advisory committees. The 67 districts
not receiving federal funds have 15 advisory committees
(22.39 per cent). The interest shown by administrators in
forming advisory committees has a slight relationship to
their implementation of federal education programs. Com—
ponent members of the existing committees are about equally
distributed between the compared districts.

The questionnaire provided an Opportunity for ad—
ministrators to list other component members not included
on the checklist. One respondent in a district not receiv-
ing federal funds wrote "administrators" in this category.
Some Of the items which funded districts added to the classi-
fication "Other" were administrative councils, school board
members, informal committees, survey committees, the direc-
tor Of secondary education, adult high school review board,
a symphony association, the senior citizens' board, and

the chamber Of commerce.

_—

127

Table 38. Distribution of advisory committee components
by federally funded and non-federally funded

 

 

 

 

 

districts.

Federally Non—Federally

Funded Funded

Districts Districts Total
Total N: 76 N= 67 N=l43
Districts having 30.26% 22.39% 26.57%
an advisory com— = 23 = 15 = 38
mittee
Committee includes 17.11% 19.40% 18.18%
citizens N= 13 N= 13 N= 26
Committee includes 11.84% 11.94% 11.89%
faculty = 9 N: 8 = 17
Committee includes 3.94% 2.99% 3.50%
students = 3 N: 2 N: 5
Committee includes 5.26% 1.49% 3.50%
others = 4 N: 1 N: 5

 

 

128

Table 39 shows that advisory committees are most
frequently utilized in third class districts, and Table 40
reveals that the largest concentration Of such committees
exists in the geographic area Of median pOpulation density.

Twenty-two Of the 38 committees are located in Area 2.

Factors promoting adult education programs.--Several

 

factors which promote adult education programs were evaluated
by means Of the questionnaire survey. Those shown in Table
41 indicate that federal funds are not considered by adminis-
trators in districts receiving federal monies to be the most
productive factor in promotion Of programs. The most Often
checked item was "news media," or the use of newspaper and
television advertising. There were 62.94 per cent Of all
administrators who checked that item was one Of the three
most productive elements promoting adult education in their

districts. "Word-Of-mouth advertising,‘ or pupils telling
their friends about the program, was second in rank order

Of the items with approximately 55 per cent of the total
number Of administrators indicating its value to their
program. There was 48.25 per cent who checked the receipt

of state funds. Employment of a full—time director Of

adult education was checked by 30.07 per cent Of the dis-
tricts, and the receipt of federal monies was ranked in

sixth place, being checked by 27.27 per cent of the districts.

It is noteworthy that receipt Of federal funds was checked

the same number of times as was "word-of—mouth advertising"

129

 

 

 

 

 

 

 

 

Table 39. Distribution Of advisory committee components
by legal classification Of districts.
Class Class Class Intermed.

2 3 4 Class Total
Total N: 2 N: 71 N= 67 N= 3 N=l43
Districts having 0.00% 36.62% 17.91% 0.00% 26.57%
an advisory com— = 0 N: 26 N= 12 = 0 N: 38
mittee
Committee includes 0.00% 22.54% 14.93% 0.00% 18.18%
citizens = 0 N: 16 N= 10 = 0 N: 26
Committee includes 0.00% 16.90% 7.46% 0.00% 11.89%
faculty = 0 N: 12 N= 5 = 0 N= 17
Committee includes 0.00% 2.82% 4.48% 0.00% 3.50%
students = 0 = 2 = 3 = 0 N: 5
Committee includes 0.00% 4.32% 2.99% 0.00% 3.50%
others N= 0 N: 3 = 2 = 0 = 5

 

130

 

 

 

 

 

 

 

 

Table 40. Distribution by geographic area Of advisory
committee components.

Area 1 Area 2 Area 3 Total
Total N: 35 N= 73 N= 35 N=l43
Districts having an 17.14% 30.14% 28.57% 26.57%
advisory committee N: 6 N: 22 N= 10 N= 38
Committee includes 2.86% 20.55% 28.57% 18.18%
citizens = 1 N: 15 N= 10 = 26
Committee includes 5.71% 13.70% 14.29% 11.89%
faculty = 2 N: 10 N= 5 N= 17
Committee includes 2.86% 4.11% 2.86% 3.50%
students = 1 N: 3 = l N= 5
Committee includes 2.86% 2.74% 5.71% 3.50%
others = l = 2 = 2 = 5

 

131

 

 

 

 

 

 

 

 

 

 

 

Table 41. Comparison by federally and non-federally funded
districts of the most productive elements pro-
moting adult education.

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N- 76 N= 67 N=l43
State funds 64.47% 29.85% 48.25%
N: 49 N= 20 = 69

Federal 50.00% 1.49% 27.27%

funds N= 38 N= 1 N: 39

Advisory 3.95% 8.96% 6.29%

committee N= 3 = 6 N: 99

Cooperating 6.58% 5.97% 6.29%

business = 5 = 4 N: 9

Full-time 38.16% 20.90% 30.07%

director N= 29 N= 14 N= 43

News 55.26% 71.64% 62.94%

media N= 42 N= 48 N= 90

Word-Of-mouth 50.00% 61.19% 55.24%

advertizing N= 38 = 41 N= 79

Other 21.05% 14.93% 18.18%

N= 16 N: 10 N= 26

 

132

by federally funded districts. However, it was not checked
as Often as was the use of news media. State funds were the
most important factor in promotion for federally funded dis-
tricts. The use Of newspaper and television advertising~
was the most important factor for federally non-funded dis-
tricts.

A similar comparison was made for promotional ele-
ments between the four legal classifications of districts
in Table 42. These data indicate that among second class
districts state funds are considered most Often to be an
important item. Advisory committees and cooperative busi~
nesses are not Often considered to be an important item
by any Of the four classes listed. In second class dis-
tricts receipt Of federal funds is ranked equally with the
employment Of full—time directors, news media, and word-
Of-mouth advertising. Federal funds were checked by all
three intermediate school districts which would indicate
that they are highly important to them. The comparison
indicates that larger school districts find traditional
methods Of promotion such as word-of—mouth advertising
and news media less productive than more recently avail-
able means. Fourth class districts rely most on former
means of promotion. News media and word-Of-mouth advertising
are rated as important factors Of promotion by all districts,

however,

133

 

 

 

 

 

 

 

 

 

 

 

Table 42. Comparison by legal size Of districts Of the
most productive elements promoting adult edu-
cation.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

State funds 100.00% 61.97% 31.34% 66.67% 48.25%

N: 2 N: 44 N= 21 N= 2 N: 69

Federal funds 50.00% 26.76% 23.88% 100.00% 27.27%

= 1 N= 19 N= 16 N= 3 N: 39

Advisory 0.00% 5.63% 7.46% 0.00% 6.29%

committee = 0 N: 4 N: 5 = 0 N= 9

Cooperating 0.00% 8.45% 4.48% 0.00% 6.29%

business = 0 = 6 = 3 N= 0 = 9

Full-time 50.00% 45.07% 13.43% 33.33% 30.07%

director = 1 N: 32 = 9 N: l N: 43

News media 50.00% 49.00% 58.21% 33.33% 62.94%

N: l N: 49 N= 39 N= 1 N: 90

Word—Of—mouth 50.00% 52.11% 59.70% 33.33% 55.24%

advertising = l N: 37 N= 40 N= 1 = 79

Other 0.00% 21.13% 14.93% 33.33% 18.18%

= O N: 15 N= 10 N= 1 N: 26

 

134

It was considered possible that the population
density within which a school district was located would
influence the promotional factors most effective for that
district. Therefore, a comparison of promotional factors
was made by geographic areas of differing population density.
Table 43 contains these data. News media were rated most
Often among the three most productive factors in all three
areas. State funds were the second most Often checked in
Area 1. Sixty per cent of the districts in Area 1 responded
to this item. The second most important factor in Area 3
and Area 4 was word-of-mouth advertising. State funds were
considered important by a greater percentage Of Area 3 dis-
tricts than by Area 2 districts. Federal funds were checked
less times than state funds for all geographic areas. A
comprehensive general evaluation of promotional factors
indicates that federal funds have at this time less influence
than might be expected in Michigan adult education programs
in comparison with other factors.

Written in as other productive factors promoting
adult education were the following:

1. mailing lists, brochures, bulletins, and news
letters (14 responses).

2. COOperating agencies, community and junior
colleges, Y.M.C.A., Mott Foundation, labor unions (17 re-

sponses).

135

Table 43. Comparison by area of the most productive ele-
ments promoting adult education.

 

 

 

 

 

 

 

 

 

 

 

Area 1 Area 2 Area 3 Total

Total N: 35 = 73 = 35 N=l43
State funds 60.00% 39.73% 54.29% 48.25%
N: 21 N= 29 N= 19 N= 69

Federal funds 25.71% 24.86% 34.29% 27.27%
N: 9 N: 18 N= 12 N= 39

Advisory 2.86% 6.85% 8.57% 6.29%
committee = l N: 5 N: 3 N: 9
Cooperating 11.43% 5.48% 2.86% 6.29%
businesses = 4 N: 4 = 1 N: 9
Full-time 31.43% 30.14% 28.57% 30.07%
director N= 11 N= 22 N= 10 N= 43
New media 68.57% 60.27% 62.86% 62.94%
N= 24 N= 44 N= 22 N= 90

Word-of—mouth 54.29% 53.42% 60.00% 55.24%
advertising N= 19 N= 39 N= 21 N= 79
Other 34.29% 10.96% 17.14% 18.18%
N: 12 N= 8 N: 6 N: 26

 

136

3. program planned to satisfy community needs
(4 responses).
4. community interest and support (3 responses).
5. long established program (2 responses).
6. community survey Of needs (1 response).

7. home study courses Offered (1 response).

Serious barriers retarding adult education.-—Fac-

 

tors which promote adult education have a somewhat recipro-
cal relationship tO those which retard its develOpment.
Table 44 compares percentages Of federal funded districts
whose administrators checked certain retarding factors

with the percentages of administrators checking those same
factors in districts which received no federal funds. There
were 42 districts (55.26 per cent) Of the districts pres-
ently receiving federal monies indicated that the lack Of
financial means was an important deterrent to the growth

Of their adult program. Both federally funded districts

and others responded in near proportional degree in this
respect. A shortage Of qualified teachers was a problem

to 30.07 per cent Of all districts. Lack Of administra—
tive support at the state level was shown to be about three
times as great in federally funded districts as it was in
those not receiving federal funds. A lack Of local interest
in adult education was shown to be an important factor con—

sidered by administrators to be hindering the program.

 

137

Table 44. Comparison by federally and non-federally funded
districts of the most serious barriers retarding
adult education.

 

 

 

 

 

 

 

 

 

 

 

Federally Non—Federally

Funded Funded

Districts Districts Total
Total N: 76 N= 67 N=l43
Lack of 55.26% 56.72% 55.94%
funds N= 42 = 38 N= 80
Shortage Of 30.26% 29.85% 30.07%
qualified teachers N= 23 N= 20 N= 43
Lack of adminis- 15.79% 5.97% 11.19%
trative support at N: 12 N= 4 N= 16
the state level
Lack Of local 40.79% 50.75% 45.45%
interest = 31 N= 34 N= 65
Lack of school 9.21% 5.97% 7.69%
board interest = 7 = 4 N: 11
Lack of information 32.89% 34.33% 33.57%
concerning community's N= 25 N= 23 = 48
adult education needs
Competing adult 35.53% 19.40% 27.97%
education agencies N= 27 N= 13 N= 40
Other 19.74% 14.93% 17.48%

N: 15 N= 10 N= 25

 

138

There was 40.70 per cent of funded districts and 50.75 per
cent Of non-funded districts which responded to this factor.
Less than one-tenth Of both types of districts considered
disinterest on the part Of local school boards to be a
deterring factor. Over 32 per cent of both types Of
districts expressed a need for more information concerning
their communities' adult education needs. Competing adult
education agencies presented a greater problem to federally
funded districts that to others. There was 35.53 per cent
Of funded districts that considered this a problem. Only-
20.90 per cent Of non-federally funded districts expressed
that competing agencies were a concern.

Comparing the frequency Of responses to the items
shown in Table 45 reveals that class 3 districts and inter-
mediate districts express proportionately greater concern
for lack of funds. Class 2 and 4 districts follow with
about 50 per cent in each classification regarding lack
of money as a major deterrent to their programs. This
item is the most Often mentioned Of any by all classes Of
districts. A shortage Of qualified teachers for adults is
greatest in the smallest districts. Class 2 districts
appear to have no problem in this respect, and it might be
assumed that larger districts have a greater reserve Of
public school teachers from which to draw their staff.

Lack Of administrative support was most often expressed in

139

 

 

 

 

 

 

 

 

 

 

 

Table 45. Comparison by legal classification of the most
serious barriers retarding adult education.
Class Class Class Intermed.
2 3 4 Class Total
Total N: 2 N: 71 N= 67 N= 3 N=l43
Lack of funds 50.00% 60.56% 50.75% 66.67% 55.94%
= 1 N: 43 N= 34 = 2 N: 80
Shortage of 0.00% 25.35% 35.82% 33.33% 30.07%
qualified = 0 N: 18 N= 24 N= 1 N: 43
teachers
Lack of adminis— 0.00% 16.90% 5.97% 0.00% 11.19%
trative support = 0 N: 12 = 4 = 0 N= 16
at state level
Lack of 50.00% 38.03% 55.22% 0.00% 45.45%
local interest = 1 N: 27 N= 37 = 0 = 65
Lack of school 50.00% 11.27% 1.49% 0.70% 7.69%
board interest = l = 8 = l = l N: 11
Lack of informa- 100.00% 32.39% 32.84% 33.33% 33.57%
tion concerning N= 2 N: 23 = 22 N= 1 = 48
communities adult
education needs
Competing adult 50.00% 33.80% 20.90% 33.33% 27.97%
education N= 1 N: 24 N= 14 N= 1 N: 40
agencies
Other 0.00% 23.97% 11.94% 0.00% 17.48%
= 0 = 17 = 8 = 0 N: 25

 

 

140

class 3 districts. A total of 16 districts Of the 143

surveyed or only 11 per cent listed absence of adminis-

trative support at the state level to be a problem.

Table 46 revealed lack of funds was a greater barrier in

Area 3 (71.

Area 1 (51.

43 per cent Of these districts) than in either

43 per cent) or Area 2 (50.68 per cent).

Written in as other barriers to program promotion

and development were the following:

1.

2.

lack Of a full—time director (10 respondents).

small size of community -- insufficient clientele

(4 responses)

3.
4.
ules (2).
5.
munity (2).
6.

7.

10.
ll.
12.

13.

inexperience -- new program (2).
shift work —- interference with class sched-
1ack of communications -— small farming com—

lack Of personnel (1).

conflicting entertainments (2).

lack Of space (1).

rigid high school completion requirements (1).
limited course Offerings -- no requests (1).
lack of interest on part of teachers' union (1).
fees charged (1).

superintendent discouraged -- years of promotion

with little response (1).

14.

funds (1).

federal legislative controls designating use of

141

 

 

 

 

 

 

 

 

 

 

 

Table 46. Comparison by geographic area of the most serious
barriers retarding adult education.
Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43
Lack of funds 51.43% 50.68% 71.43% 55.94%

= 18 N= 37 = 25 N= 80
Shortage Of 31.43% 27.40% 34.29% 30.07%
qualified teachers N= 11 = 20 N= 12 = 43
Lack of adminis- 20.00% 8.22% 8.57% 11.19%
trative support at N: 7 N: 6 N: 3 N= 16
state level
Lack of local 42.86% 45.21% 48.57% 45.45%
interest N= 15 N= 33 N= 17 N= 65
Lack Of school 20.00% 4.11% 2.86% 7.69%
board interest N= 7 N: 3 N: 1 N= 11
Lack Of information 40.00% 38.36% 17.14% 33.57%
Of community's adult = 14 N= 28 N= 6 N: 48
education needs
Competing adult 34.29% 24.66% 28.57% 27.97%
education agencies N= 12 N= 18 N= 10 N= 40
Other 25.71% 13.70% 17.40% 17.48%

N: 9 N: 10 = 6 = 25

 

142

Cooperation with other agencies involved in adult

 

education.-—Many agencies and organizations are concerned

 

with the education of adults. Social welfare agencies,
employment agencies, and labor unions are examples. Al-
though some are able to provide educational facilities in
accordance with their purposes, the advantages Of corre—
spondence and coOperation between agencies are Obvious.

In many instances duplication and competition may be avoided
in the adult education process. Public school administrators,
being traditionally charged with adult program promotion,
have attempted with varying degrees Of success to maintain'
liaison with such agencies. Table 47 compares the responses
for districts in regard to federal influence on numbers of
contacts with cooperating agencies by federally and non-
federally funded districts. Although 49.65 per cent of all
districts surveyed are shown to have been unaffected in

their number Of contacts, almost 70 per cent of the districts
receiving federal funds reported increased contacts. Ten
unfunded districts, whether through increased awareness be—
cause of federal acts or a related reason, reported increased
contacts. There were 63 districts reported improved liaison
with cooperating agencies because Of federal legislation.
Among these districts, Table 48 shows the greatest number to
be class 3 and class 4 districts. Thirty-seven (52.11 per
cent Of class 3 districts) Of the districts in class 3

reported such increases. Twenty-two (32.11 per cent) of

143

 

 

 

Table 47. Comparison of federal legislative influence on
districts contacts with cooperating agencies
between federally and non—federally funded
districts.

Federally Non—Federally

Funded Funded

Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased 69.74% 14.93% 44.06%
contacts N= 53 = 10 N= 63
(2) Decreased 0.00% 0.00% 0.00%
contacts N= 0 N: 0 = 0
(3) Unchanged 25.00% 77.61% 49.65%
N: 19 N= 52 N= 71
(4) NO Opinion 3.95% 5.97% 4.90%
N: 3 N: 4 = 7

 

 

 

 

144

 

 

 

 

Table 48. Comparison Of federal legislative influence on
the number Of district contacts with cooperating
agencies according to legal classifications Of
districts.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 50.00% 52.11% 32.11% 100.00% 44.06%

contacts = 1 N: 37 N= 22 N= 3 N= 63

(2) Decreased 0.00% 0.00% 0.00% 0.00% 0.00%

contacts = 0 = 0 N: 0 N: 0 N: 0

(3) Unchanged 50.00% 45.07% 56.72% 0.00% 49.65%
= l N: 32 = 38 N= 0 N= 71

(4) NO Opinion 0.00% 2.82% 7.46% 0.00% 4.90%
= 0 = 2 N: 5 N= 0 N: 7

 

 

145

the class 4 districts also reported increases. One of the
class 2 districts and all three of the intermediate school
districts increased their contacts. Table 49 shows that
federal influence was experienced in every geographic area

Of the state. Over one-half Of the districts in Area 1
(54.29 per cent), over two-fifths in Area 2 (42.47 per cent),
and almost two-fifths Of the districts in Area 3 (37.14 per
cent) reported increased contacts with cooperating agencies

because Of federal legislative acts.

Clerical and record keeping tasks.--Administrators

 

repeatedly criticized federal education legislation during
interviews because of requirements which increased the need
for detailed records. TO determine the extent by one mea-
sure which such legislation actually influenced clerical
and record keeping tasks, administrators were asked to
indicate if increases had been necessitated by federal
legislation. Table 50 compares responses of districts
receiving federal funds with those not receiving them.
Sixty-one (80.26 per cent) Of the federally funded districts
reported increased work loads. However, there were ten which
were unchanged. Eight districts not receiving federal monies
also reported increases because Of federal legislation.

Legal classifications Of districts are compared in
Table 51 to determine the extent to which increases were
related to classifications. All districts in class 2 and

the intermediate class reported increased work loads.

146

 

 

 

 

Table 49. Comparison Of federal legislative influence on
the number of district contacts with cooperating
agencies between geographic areas.

Area 1 Area 2 Area 3 Total

Total N: 35‘ N= 73 = 35 N=143

(1) Increased 54.29% 42.47% 37.14% 44.06%

contacts N= 19 N= 31 N= 13 N= 63

(2) Decreased 0.00% 0.00% 0.00% 0.00%

contacts = 0 N: 0 N: 0 N: 0

(3) Unchanged 37.14% 53.42% 54.29% 49.65%
N: 13 N= 39 N= 19 = 71

(4) NO Opinion 5.71% 4.11% 5.71% 4.90%

 

 

147

 

 

 

 

Table 50. Comparison Of federal legislative influence on
clerical and record keeping tasks between fed-
erally and non-federally funded districts.

Federally Non-Federally

Funded Funded

Districts Districts Total
Total N: 76 N= 67 =143
(1) Increased 80.26% 11.94% 48.25%
work load N= 61 N= 8 N= 69
(2) Decreased 0.00% 0.00% 0.00%
work load N= 0 N: 0 N: 0
(3) Unchanged 13.16% 83.58% 46.15%
N: 10 N= 56 N= 66
(4) NO Opinion 6.58% 4.48% 5.59%
N: 5 N: 3 N: 8

 

 

148

Table 51. Comparison Of federal legislative influence on
the clerical and record keeping tasks Of dis-

tricts according to legal classifications.

 

 

 

 

Class Class Class Intermed.
2 3 4 Class Total
Total N: 2 N: 71 N= 67 N= 3 N=l43
(1) Increased 100.00% 60.56% 31.34% 100.00% 48.25%
work load N= 2 N= 43 N= 21 N= 3 N: 69
(2) Decreased 0.00% 0.00% 0.00% 0.00% 0.00%
work load N= 0 = 0 N: 0 N: 0 N: 0
(3) Unchanged 0.00% 35.21% 61.19% 0.00% 46.15%
N: 0 N: 25 N= 41 N= 0 N: 66
(4) NO Opinion 0.00% 4.23% 7.46% 0.00% 5.59%
N: 0 = 3 N: 5 N: 0 N= 8

 

 

149

Forty—three class 3 districts (60.56 per cent of those in
that class) and 21 class 4 districts (31.34 per cent) re-
ported increases. The number of districts for each class-
showing increases closely corresponds to the data given

at the beginning Of this chapter relative to the types of
districts implementing federal acts (see Table 1). Table 52
compares the data by geographic areas. These date also
closely compare with those for implementation Of acts given
at the beginning of this chapter. With the exception Of
13.16 per cent of such districts, all districts increased
their clerical tasks by implementing federal education

legislation.

Written comments Of administrators.--Opportunity

 

was afforded administrators through the questionnaire
to make general comments concerning any related aSpect
Of the survey or its subject. Many Of them had a relation-
ship to promotion and are included for that reason. Written
in as responses to the item "General Comments" were the
following:
It is difficult to measure the exact effects of
Federal actions, because that is not the only variable
in the program. There is a question Of the economic
climate, increase in technology, and the general need

for more education regardless of Federal action.

The program is-more directly affected through state
aid funds than Federal funding.

150

 

 

 

 

Table 52. Comparison Of federal legislative influence on
the clerical and record keeping tasks Of dis-
trict adult education programs according to
geographic areas.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Increased 62.86% 39.73% 51.43% 48.25%

work load N= 22 N= 29 N= 18 N= 69

(2) Decreased 0.00% 0.00% 0.00% 0.00%

work load = 0 N: 0 = 0 = 0

(3) Unchanged 28.57% 54.79% 45.71% 46.15%
= 10 N= 40 = 16 N= 66

(4) NO Opinion 8.57% 5.48% 2.86% 5.59%
= 3 N: 4 = l = 8

 

 

151

The state aid allowance for adults working toward
the high school completion diploma has been the most
potent factor. This is where our large enrollment is.
The other (Federal) is largely basic education.

Assistance in any of the categories provided by
Federal funds would be limited to increased awareness
on the part of our community. My program has increased
without any direct assistance from the Federal govern—
ment.

The general effect will be to enhance our program.
Change will be slow to materialize.

I need more information about Federal funding to
these programs for adult education.

The state aid for membership and attendance has
been of great value, and Federal aid will be of great
help to us in the future. I have loaned the majority
of my students under Federal action to other schools
to make full classes.

Many of the programs spend money foolishly just to
make them go or to meet some stupid standard which does
not apply to this type of community in the first place.

We lost many of our vocational programs and teachers
to the community college.

We had an adult program of crafts and recreation
which is self-supporting and have added basic adult
education this year 1966—67.

Federal aid and state aid is needed and welcomed.
The service provided is well worth the money.

Change the funding practices to allow for more
complete planning.

We have not felt the full impact of Federal funds
as of this time. However, we are doing considerable
planning for the 1967—68 school year. We are at pres—
ent unable to specifically say how this will affect
our total program. We hope that it will increase en—
rollment and help us to do a better job.

Up to this point, we are moving toward increased
adult basic education and expanding adult diploma pro—
grams.

 

152

Money should be put into existing programs instead
of creating new ones. Stop all the surveys and put
the money where it will help.

Our program has not depended on Federal action in
any way, nor does it now.

We are tOO small to become involved as a district.

We were too late to take advantage of the high school
completion program this year but expect to participate
next fall.

Our whole program is based on enrichment with no
need for adult basic education.

We are presently studying our participation in adult
programs that could qualify for Federal funds.

Our only adult program has been agriculture and home
economics. These have not changed in years.

We lack sufficient so-called "pockets Of poverty"
and educationally and culturally deprived.

Our program is only a year Old. At the present
time we Offer basically hobby courses. We hOpe tO
start a high school completion course next fall.

It is ironic, but our area probably needs increased
adult education more than most areas of the State. We
just do not have the staff or funds to handle the in-
creased red tape and detail of Federal programs. We
are already participating in 6 other Federal programs.

Our adult program has been just physical education.
NO enrichment. NO requests from the public.

Our yearly survey results indicate very little in-
terest in an adult education program.

Our program is financed by individual fees only.
NO Federal or state support. NO credit given.

Federal aid should be channelled through state
departments Of education. It should not be in the
form of categorical aid except for national defense
purposes.

153

Federal funds for adult education are too fragmented.
Adult educators are besieged by too many agencies and
are too often expected to operate as employees Of these
agencies for collecting data, completing surveys, and
keeping books. Why should vocational education, "basic"
education, family education, etc. be differentiated
from adult education? These are merely parts of the
total program and should be coordinated and administered
as such. The most efficacious manner of providing funds
would be to provide them for a total program through a
single agency.

From what I have been able to find out the Federal
programs were not set up to assist a district such as
ours.

We have made a request for a large amount Of funds
for 1966—67.

Our first funds are being received during the 1966—
67 school year.

Summary

Hypothesis II was also verified. The number of
public school district adult education programs in Michigan
employing one or more full—time administrators has increased
because of federal legislation. The number of districts
employing more than one full-time administrator increased
by more than 61 per cent in fiscal year 1966 compared to
1964 while the number of districts employing one full—time
administrator increased by 46.15 per cent in the same period.
Federal education legislation influenced the employment Of
one Of more administrators in positions within 28 of the 143
districts surveyed. More districts in the third class and
districts located in the less densely populated median area

of the state reported increased employment. The problem

 

154

was investigated further and it was revealed that 14 dis—
tricts planned to add members to the administrative staff
in the near future because Of federal legislation. This
was true only of third and fourth class districts.

Federal legislation also influenced the adminis-
trative and organizational structures Of Michigan adult
school programs. A total of 45 districts were affected to
some degree in their administrative structure. Forty-nine
were affected in their organizational structure. Third
class districts and districts in the median area of pOpu-
lation density were most Often affected.

The use Of policy statements and advisory committees
in regard to administrative practice was found to have a
greater relationship to programs which received federal funds
than to others. Only third and fourth class districts were
concerned with philosophy and advocation of tax-supported
programs in their statements of policy. Districts in all
classes had a statement concerning finances. Second, third,
and fourth class districts had a statement concerning stu—
dent fees while third, fourth, and intermediate class dis-
tricts had a statement controlling the type Of program to
be supported. Districts being guided by policy statements
were located in all three areas of the state with the great-
est number being located in the median area Of population
density. Only third and fourth class districts used ad—
visory committees. These were located in all areas of the

state, although the greatest number were in the median area.

155

Because the promotion of adult education programs
is a leadership function of administration, the most pro-
ductive elements or factors promoting adult education pro"
grams and the most serious barriers to program development
were examined in this context. While the most productive
element for federally funded districts was state aid, it
was revealed that federal programs were less productive
than news media in promotion Of the programs and were rated
on a par with word-Of-mouth advertising. In other districts
news madia were rated the most important element with word—
Of-mouth advertising rated closely below but far higher
than all other elements. The most highly rated element of
promotion was state aid by third and fourth class districts
and federal funds in intermediate districts. When considered
by geographic areas, news media was the most productive of
all elements. In regard to serious barriers retarding pro-
gram development, "1ack of funds" was named the most Often
and proportionately the same number of times by federally
and non-federally funded districts. This item was indicated
to be the most serious barrier Of all to program promotion.
Comparing the items by legal classifications of school dis-
tricts, the data revealed that "lack of information concern—
ing community adult education needs" was most Often named
by second class districts, "lack Of funds" by third and
intermediate class districts, and "lack of local interest"

by fourth class districts. "Lack of funds" was named

156

proportionately more Often in the sparcely pOpulated area
of the state than in the other two areas, but it was con-
sidered by districts in each area to be the most serious
barrier retarding adult education.

Another administrative function investigated was
contacts Of administrators with cooperating agencies in—
terested in education Of adults. Federal influence was
reported to have affected 44.06 per cent of the districts
by increasing their total number of contacts with COOperat-
ing agencies. In no case were less contacts reported. It
is evident that federal influence extended beyond the dis-
tricts funded. All three intermediate districts, one Of
the two second class districts, 52.11 per cent Of third
class districts, and 32.11 per cent Of the fourth class
districts reported increased contacts because of federal
influence. The greatest proportional number of districts
so reporting were in the densely populated area Of the
state while the least number but still 37.14 per cent of
that area was in the most sparcely populated area.

Increases in clerical and record keeping tasks were
also investigated because of administrators' concern that
federal programs required an extraordinary work load. It
was revealed that 61 districts Of the 76 receiving federal
funds increased their work load Of clerical and record keep-
ing tasks by implementing federal legislation. Related in—

creases due to federal influence were reported by 8 districts

157

not implementing federal programs. It would appear that
some increases were a desirable improvement and were a
part Of increased awareness of good book keeping practice.
All classes of districts and geographic areas Of the state
were affected. Proportionately the least affected were

districts in the median area.

Adult School Teaching

 

Opinions of educators concerning the need for or-
ganized preservice training of teachers for adult classes
have varied greatly. A major decision was reached by the
United States Office Of Education and was implemented dur—
ing the summer Of 1966. Because the anti-poverty program,
which is basic skills training for functional illiterates,
requires confrontation Of millions of adult functional illit—
erates by trained teachers, the Office of Education developed
nine teacher training institutes at the universities Of
Connecticut, North Carolina State, Florida State, Wayne
State, Missouri, Texas, Colorado, California and the State
University Of New York. A report from the Office of Educa-
tion said that "it has been clear from the beginning that
the program would suffer seriously if the country were to
wait for a new corps of adult basic education teachers to be

professionally trained by the nation's schools of education."10

 

lOThe U.S. Office of Education, The Training Program
for Adult Basic Education Teacher Trainers (Washington, D.C.:
National University Extension Association, NOV., 1966),

pp. 2-3.

 

 

158

Although the results of the institutes will not be fully
noted until June, 1967, they are mentioned to illustrate
current concerns regarding teacher training in the field
Of adult education.

Educators in the field of vocational education
have been aware of the need and have made provision for
training teachers of adults for some time. Undergraduate
courses in home economics, for example, include an under—
standing Of program planning in adult education. Some
courses provide for Observation of adult prOgrams in teaching
centers. A report from the Michigan Division of Vocational
Education indicates further concern. The report states,

"This aspect Of the program needs to be strengthened."11

Teachers Trained to Teach Adults

 

Table 53 compares the data in regard to federal
legislatvie influence on the total number of teachers train-
ed tO teach adults in the Opinion Of administrators. Among
federally funded districts, the data show that 36.84 per
cent, or 28 districts, were reported to have gained in the
number of teachers so trained. On federally funded dis—
trict and one non—federally funded district were reported

to have lost one or more trained teachers due to federal

 

11Division of Vocational Education, Annual Descrip-
tive Report of the Division of Vocational Education for
the Fiscal Year Ending June 30, 1966 (Lansing, Michigan:
State Board Of Education, 1967), p. 52.

 

 

159

Thable 53. Comparison Of federal legislative influence be-
tween federally and non-federally funded dis-
tricts on the total number Of teachers trained
to teach adults.

 

 

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=14 3
(1) Increased number 36.84%, 0.00% 19.58%
N: 28 N= 0 N: 28
(2) Decreased number 1.32% 1.49% 1.40%
N: 1 N: l N: 2
(3) Unchanged number 43.42% 91.04% 65.73%
N: 33 N= 61 N= 94
(4) NO Opinion 17.11% 8.96% 13.29%
N: 13 N= 6 N: 19

 

 

160

programs. The per cent of all districts which increased
their staffs with trained teachers was 19.58 per cent.

Table 54 compares the data according to legal classi—
fications of districts. Both second class districts re—
ported increases. One Of the three intermediate districts
reported an increase. The number Of third class districts
reporting increased employment Of trained teachers was pro—
portionately greater than that of fourth class districts
even though these two classes contained nearly the same
number of districts. There were 18 third class districts,
or 25.35 per cent Of that class, so reporting compared to
7 fourth class districts, or 10.45 per cent Of that class.
More programs which reported increased hiring of trained
teachers were in the third class than any other.

Table 55 compares the data by geographic areas.
The greatest number of programs in which federal influence
in provision Of trained teachers was experienced were in
Area 2. There were 17.81 per cent Of the districts con-
tained in Area 2, or 13 districts, so reported compared to
28.57 per cent Of the districts in Area 1, or 5 districts,
and 14.29 per cent of the districts in Area 3, or 5 dis-
tricts. The number of districts in Area 1 was proportion—
ately influenced to a greater extent than those in Area 3,

although they contained an equal number of districts.

 

161

 

 

 

 

Table 54. Comparison of federal legislative influence be-
tween legal classifications Of districts on the
total number of teachers trained to teach adults.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 100.00% 25.35% 10.45% 33.33% 19.58%

number = 2 N= 18 N= 7 N: l N: 28

(2) Decreased 0.00% 2.82% 0.00% 0.00% 1.40%

number = 0 N= 2 N: 0 N: 0 N: 2

(3) Unchanged 0.00% 63.38% 73.13% 0.00% 65.73%
= 0 N: 45 N= 49 N= 0 N= 94

(4) NO Opinion 0.00% 8.45% 16.42% 66.67% 13.29%
= 0 N: 6 N: 11 N= 2 N: 19

 

 

162

 

 

 

 

Table 55. Comparison of federal legislative influence be-
tween geographic areas On the total number of
teachers trained to teach adults.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Increased 28.57% 17.81% 14.29% 19.58%

number N: 10 N= 13 N= 5 N: 28

(2) Decreased 2.86% 1.37% 0.00% 1.40%

number = l = 1 N: 0 = 2

(3) Unchanged 51.43% 68.49% 74.29% 65.73%
' N= 18 N= 50 N= 26 N= 94

(4) NO Opinion 17.14% 12.33% 11.43% 13.29%
= 6 = 9 N: 4 N: 19

 

 

163

Sources and Numbers of
Teachers Emplgyed

 

 

With the exception of the area of vocational edu-
cation, training for adult education staff in the public
schools has consisted primarily of bulletins, news letters,
and lecture meetings at the beginning of the school year
in many cases. Adult educators are drawn from the public
school staff, and their efforts supplemented by lay teachers
with proficiencies in certain areas who are specially certi-
fied for their teaching tasks. Sources and numbers of
teachers employed in Michigan public school district adult
education programs are shown in Table 56. The data reveal
that the fiscal year 1966 reflected an increase in both
the numbers Of teachers and the per cent Of teachers regu-
larly employed in teaching in the K — 12 day school program.
An increase Of 1045 teachers drawn from the public day
school staff occurred between fiscal 1964 and 1966. Although
the number of specially certified teachers of adults increased
by 150 between 1964 and 1966, the proportion of such teachers
to the total adult education staff decreased by 4.7 per cent.
An average Of about 240 teachers was drawn from the ranks
of college teachers for the years through 1964 according
to the table. NO teachers were so listed in 1966. However,
there was an increase Of almost one thousand teachers in-

dicated over the final two—year period.

164

 

 

0.000 0000 I 00000050 0m000
0.00 0000 000 000000000 000m00000
0.00 0000 000 00m00 000000 000000
00I0000
0.000 0000 I 00000000 0m000
0.0 000 00 mumnomme 0000000
0.00 0000 000 000000000 000m00000
0.00 0000 000 mmmum 000000 000000
00I0000
0.000 0000 I 00000080 0m000
0.0 000 00 00000m00 0000000
0.00 0000 000 000000000 000m00000
0.00 0000 000 00m00 000000 000000
00-0000
0.000 0000 I 00000020 0m000
0.0 000 00 mumsomme 0000000
0.00 0000 000 000000000 000m00000
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paw mwousom .mm MHmNB

165

The opinions of administrators were studied to de—
termine the number and characteristics of districts which
were reported to have enlarged their adult education staffs
because of federal influence. Table 57 compares federally
funded districts with non-federally funded districts in
this regard. Fifty-three Of the 76 federally funded dis-
tricts reported increased staff due to implementation of
federal programs, 18 remained the same as before implementa-
tion. The data reveal that federal influence was indicated
in two districts not receiving federal funds. One such
district reported an increase because of federal influence.
Another reported a decrease. Federal education legislation
is indicated to have influenced the number Of teachers em-
ployed by 37.76 per cent of the districts.

A comparison of the data by legal classifications
Of districts is shown in Table 58. Of the 54 districts
which increased their adult education staff, 35 were third
class districts and 14 were fourth class districts. Both
of the second class districts reported increases, as well
as all three of the third class districts. The greatest
number so influenced were third class districts. Almost
one-half of these districts reported increased teaching

staffs because Of federal legislation.

 

166

Table 57. Comparison of federal legislative influence be—
tween federally and non—federally funded dis—
tricts on the total number of teachers Of adults

 

 

 

 

 

employed.
Federally Non—Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased number 69.74% 1.49% 37.76%
N: 53 N= l N: 54
(2) Decreased number 0.00% 1.49% 0.70%
N: 0 N: 1 = l
(3) Unchanged number 23.68% 91.04% 55.24%
N: 18 N= 61 N= 79
(4) No opinion 5.26% 5.97% 5.59%

N= 4 N: 4 = 8

 

 

167

 

 

 

 

Table 58. Comparison Of federal legislative influence be-
tween legal classifications of districts on the
total number Of teachers Of adults employed.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 100.00% 49.43% 20.90% 100.00% 37.76%

number = 2 N: 35 N= 14 N= 3 N: 54

(2) Decreased 0.00% 1.41% 0.00% 0.00% 0.70%

number = 0 N: 1 N: 0 N= 0 = l

(3) Unchanged 0.00% 47.89% 67.16% 0.00% 55.24%
= 0 N: 34 N= 45 N= 0 N: 79

(4) NO Opinion 0.00% 1.41% 10.45% 0.00% 5.59%
= 0 N= 1 N: 7 N: 0 = 8

 

 

 

168

Table 59 compares the responses of districts by
geographic areas. Area 2 contained the greatest number of
districts in which increased teaching staffs were reported.
It contained 21 such districts compared to 18 in Area 1 and
15 in Area 3.

Average Hourly Wage Paid
for Instruction

 

It might be expected that increased employment Of
teachers and their improved professional preparation would
result in higher hourly wages or salaries being paid to
them. The data were examined to determine if such increases
had occurred. Table 60 compares the average hourly wage
paid adult education teachers through fiscal years 1962-
1966. The data reveal that there is a relationship between
increased employment of teachers and increased hourly wages.
Wages paid in 1966 increased over those paid two years pre—
viously. There were six less districts reporting wages of
$3.00 and under. Fifty—two districts were added to those
paying over $3.00 to $5.00 per hour, and 20 districts were
added to the $5.01 to $7.00 group. Six districts paid over
$7.00 in 1966. There had been no districts in this group
after 1963 when one district discontinued paying that amount.

In order to determine by some measure the extent of
federal influence on the average salary or hourly wage paid
teachers of adults, administrators were asked to indicate

the general affect of federal education legislation in this

 

 

 

169

 

 

 

 

Table 59. Comparison Of federal legislative influence be-
tween geographic areas On the total number Of
teachers Of adults employed.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Increased 51.43% 28.77% 42.86% 37.76%

number = 18 N= 21 N= 15 N= 54

(2) Decreased 2.86% 0.00% 0.00% 0.70%

number = 1 = 0 N: 0 N: l

(3) Unchanged 40.00% 65.75% 48.57% 55.24%
N= 14 N= 48 N= 17 N= 79

(4) NO Opinion 5.71% 5.48% 5.71% 5.59%
= 2 = 4 N: 2 N: 8

 

 

 

170

 

 

 

 

 

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ucmoumm
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00.00H 00.0 00.0 00.m0 0N.mH H0009 mo
pcmOMmm
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0 0 a 00>o 00 00.00 00 00.00 00 00.00
.QOHHOSHumGH 00m pHmm mmmB hHusos mmmum>¢ .om MHm¢9

 

171

regard in their districts. Table 61 compares the results
between federally funded and non—federally funded districts.
Among the federally funded districts, 25 per cent, or 19
districts, reported increases. Influence was also evident
in non-federally funded districts. Six of these districts
representing almost 9 per cent of that group reported in—
creased wages due to federal programs. Federal influence
was reported in wage increases by 17.48 per cent of all
districts.

The districts were compared by legal classifications

 

and geographic areas in which they were located in order to
determine the characteristics of districts influenced.

Table 62 compares the data by legal classification. Except
for one intermediate district all increases in salaries and
wages were reported for third and fourth class districts.
Fifteen of the 25 districts reporting increases were third
class districts. Nine were fourth class districts. In
Table 63 a comparison by geographic areas is presented. It
shows that 8 districts influenced were in Area 1, 10 in Area
2, and 7 in Area 3. Even though the greatest number of dis-
tricts so influenced was in Area 2, those in Area 1 and 3
represent a higher proportion of the districts contained in

them.

 

 

172

Table 61. Comparison Of federal legislative influence be~
tween federally and non-federally funded dis-
tricts on the salary or hourly wage paid teachers

 

 

 

 

Of adults.
Federally Non—Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased 25.00% 8.96% 17.48%
N= 19 N= 6 N: 25
(2) Decreased 0.00% 0.00% 0.00%
N: 0 N: 0 N: 0
(3) Unchanged 63.16% 77.61% 69.93%
N: 48 N: 52 N=100
(4) No opinion 11.89% 11.94% 11.89%

N= 9 N: 8 N= 17

 

 

 

 

173

 

 

 

 

Table 62. Comparison Of federal legislative influence be-
tween legal classifications Of districts on the
salary or hourly wage paid teachers Of adults.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 0.00% 21.13% 13.43% 33.33% 17.48%

N: 0 = 15 = 9 N= l N: 25

(2) Decreased 0.00% 0.00% 0.00% 0.00% 0.00%

N: O = 0 = O N: 0 = 0
(3) Unchanged 100.00% 71.83% 70.15% 0.00% 69.93%
N: 2 N: 51 N= 47 N= 0 N=100
(4) NO Opinion 0.00% 4.23% 17.91% 66.67% 11.89%
N: 0 N: 3 N: 12 N= 2 N: 17

 

 

 

174

Table 63. Comparison of federal legislative influence be-
tween geographic areas On the salary or hourly
wage paid teachers of adults.

 

 

 

 

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43
(1) Increased 22.86% 13.70% 20.00% 17.48%
N: 8 = 10 N= 7 N: 25

(2) Decreased 0.00% 0.00% 0.00% 0.00%
N=0 =0 N=0 N=0

(3) Unchanged 68.57% 72.60% 65.71% 69.93%
N: 24 N= 53 N= 23 N=100

(4) NO Opinion 11.43% 10.96% 14.29% 11.89%
= 4 N: 8 N: 5 N: 17

 

 

 

175

Summary
Hypothesis III was substantiated. The number of

instructors trained to teach adults has increased in the
public school districts of Michigan because of federal
legislation. Provisions for training teachers of adults

have been included in undergraduate courses in vocational
education as a part of college and university preparation

Of teachers. Institutes for adult basic education teachers
were provided by nine universities throughout the United
States during the summer Of 1966 to train master teachers

who worked in the public school adult programs preparing
others to teach adults. The Opinions of administrators re-
garding increases in teachers trained to teach adults show
19.58 per cent Of all districts or 36.84 per cent of fed-
erally funded districts increased their employment of trained
teachers. More third class districts reported such increased
employment than any other classification. Of the 28 districts
in the total population reporting increases, 13 were in the
median area of pOpulation density, 10 in the densely pOpu—
lated area, and 5 in the sparcely populated area. The

total number of teachers employed in adult programs in-
creased by 1000 teachers in fiscal 1966 compared tO 1964.
There were 37.76 per cent of all districts which reported
increased numbers of teachers employed due to federal legis-
lation. Both second class districts, all three intermediate

school districts, 49.43 per cent of the third class districts,

176

and 20.90 per cent of the fourth class districts reported
such increases. The greatest proportional increase was in
the densely populated area of the state while the most dis-
tricts reporting increases were in the median area of popu-
lation density.

Federal influence also affected average hourly wages
of teachers of adults which increased in 17.48 per cent of
all districts. Third, fourth, and intermediate class school
districts only were affected while the greatest prOportional
number of districts affected were third class districts.

The 25 districts reporting wage increases due to federal
programs were about evenly distributed over the three geo—
graphic areas of the state with 22.86 per cent of the dis-
tricts in the densely populated area, 13.70 per cent in
the median area, and 20.00 per cent in the sparcely popu—

lated area.

Adult Education Curriculum

 

In this division data are presented to describe
trends in the number of districts which Offer courses in
specific areas of instruction and the number of such courses
offered. Other information obtained through the question—
naire survey are shown concerning the Opinions of adminis—
trators in regard to the influence Of federal education

legislation on related aspects of adult education.

177

General Adult Education
Curriculum

 

In Table 64 the data in regard to numbers of
courses offered through general adult education classes in
Michigan public schools are compared for fiscal years 1961
through 1966. Increases are indicated in almost all in-
structional areas. There were some classes Offered in 1966
with much greater frequency than was evident over the pre-
vious five-year period. A few were offered less often.

The influence Of two major factors to be considered is that
of state aid and federal funds for adult education. The
total number of courses was greater in 1966 than in the
entire period previous to that time. Almost 3000 more
courses were offered in fiscal year 1966 than in 1964.

This was approximately the total increase shown in High
School Academic Education courses over that period. One
hundred twenty-four less courses were offered in Health,
Safety, and Education in 1966 than in 1964. Although there
were fluctuations in the number of courses Offered over the
years, they had not previously been so large. Therefore,

it might be assumed that an unusual influence had affected
the Offering of courses in that area. The same statement
can be made for Classical Education which had 90 less pro-
grams in 1966 than in 1964. Civic and Public Affairs courses
were offered less Often by 116 courses in the two year span.

The instructional area of Practical Arts lost 300 courses

178

 

 

 

 

 

 

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00 00 00 00 000 mpcmumm 00 0000m0000 0m00000 .00
mMOH HOOH cOOH oNOH m0m mHHme H0000000000m .NH
000 000 000 000 00 00000000m0mm 00000
000 0008QOH0>0Q H0GOmumm .HH
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mmmH HomH ommH o0mH mm0N 0004 H0OH00000 .m
om mON 0NH 0mH wON 00H000¢ OHHQDm 000 OH>HO .w
NOH NMN 0NN 0MN mmH 000000000 H0OHmm0HO .0
mm0H oomH Hm0H mNON mmmH 0000 0H080m 000 000000 .0
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000 000 000 000 000 00800000000 0 0000m000m000ma< .0
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H0nmcmm 0H mHoonom OHHQSQ 90 000000800 0000000 00 000850 000 00 0000000800 .00 m0m<9

179

between 1964 and 1966. It is reasonable to assume that
increases in the number of courses offered in other areas

of instruction were related in some measure to the decreases
described. It might be assumed that courses requiring stu-
dent fees and tuition were omitted from the curriculum in
favor of those funded either by state aid or federal funds.
If this were the situation, it would be expected that courses
in the area of Americanization and Citizenship would not be
offered as often as before. Clientele could derive somewhat
similar benefits from tuition-free courses. Americanization
and Citizenship courses were actually offered 54 more times
in 1966 than two years previous. Courses in the area of
Elementary Education increased by 130 in that period as
would be expected under the federal basic education program.
The greatest increase in regard to the total number of courses
offered in any one area was that indicated for High School
Academic Education.

High School
Academic Education

 

 

Table 65 compares details concerning the area of
High School Academic Education for the fiscal years 1960
through 1966. Total enrollments in general adult education
are also shown for that period. The data reveal a greater
number of students enrolled in 1966 than any other year.
Total enrollment in 1966 was 287,863. There were 51,733

of these students enrolled in high school credit courses

180

 

 

 

 

 

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I1000000 0000000000
000000000 00 000802
mnn.00 00>.om mmn.mm wmm.0m m00.0m 000000 000000
0000 000 00000000
000000 00 000802
00 mm 00 00 om 0000000 000000
000000 0000 0000000000
000000000 00 000802
m0m.nmm wm0~NmN m0m~¢vm Homrvwm vmm~0mm 00000000
000000 00 000802
000 mvH 000 000 000 000000000 00009
0010000 00Im000 m0lm000 m0|0000 0010000 800H
.00malo000
00000 000 000 0000000 000000 000000 0000 0000000000 0000 0>000000800 .00 00009

181

in 1966. The impact of state aid is represented in these
figures. High school credit courses were offered by 79
districts in 1966. Compared to the data given in the first
section of this chapter under federal funds, these figures
show state aid to have a much greater effect on enrollment
than do federal funds. A sum of all totals for enrollment
under the 77 federally funded districts would be about
16,000 students. In nearly the same number of districts,
state aid directly affected approximately 36,000 more stu—

dents than federal funds.

Vocational Education Curriculum

Tables 66 and 67 compare data for all levels of
vocational education in Michigan.12 Its purpose in this
research is primarily to present the classifications of
courses offered in adult education under federal vocational
legislation and to provide a basis for excerpts derived
from the aforementioned report. The column entitled "Out-
of-School Youth and Adults" contains the data concerning
public school district adult education programs. Areas of
instruction provided for adult education are indicated by
the data in that column. Although the instructional areas

are applicable to public school district adult education

 

12Tables 66 and 67 were derived from the State Board
of Education, Annual Descriptive Report of the Division of
Vocational Education for the Fiscal Year Ending June 30, 1966
(Lansing, Michigan: Department of Education, 1967), p. 97.

182

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Table 66
Vocational Education Enrollments
1964-65
In-School Out-of-School
Service High Post-high
School School Youth and Adults Total
Agriculture 13,130 1,601 14,731
Cooperative:
Dist. 5,092 344 5,436
Office 5,432 372 5,804
T & I 3,438 572 4,010
Dist. (Adult) 16,922 16,922
Home Economics 55,443 17,624 73,067
T & I 4,304 46,673 50,977
Practical Nurse
and Other Health
Occupations 166 79 2,515 2,760
Technical Programs 403 2,544 2,793 5,740
Totals 87,408 3,911 88,128 179,447
Table 67
Vocational Education Enrollments
1965-66
In-School Out-of-School
Service High Post-high
School School Youth and Adults Total
Agriculture 13,227 420 1,496 15,143
Coopertive:
Dist. 5,870 542 6,412
Office 6,065 498 6,563
T & I 4,157 114 4,271
Dist. (Prep.) 8,079 799 8,878
Dist. (Adult) 20,116 20,116
Office (Prep.) 33,292 11,268 44,560
Office (Adult) 5,409 5,409
Home Economics 59,436 62 16,614 76,112
T & I (Prep.) 7,385 58,183 65,568
Practical Nurse
and Other Health
OccuEations 183 2,599 746 3,528
Technicians 298 3,051 4,883 8,232
Totals 137,992 19,353 107,447 264,792

 

183

programs, the enrollment figures also include those of
other levels of adult education. Further explanation is
contained in excerpts describing secondary school adult
education programs in the following paragraph.

The 1967 report of the Michigan Division of Voca—

tional Education reviewed Tables 66 and 67 as follows:

With the exception of Agricultural Education and
Health Occupations, enrollments for out-of-school
youth and adults increased in every program. Total
enrollments in this group increased from 88,128 in
1965 to 107,447 in 1966. 3

In discussing the fiscal 1966 data, the report noted that
73 secondary schools offered supplementary programs for
adult farmers which involved 1250 persons.14 Of the com-
bined data of university extension services, community
colleges, and secondary schools concerning adult Distri-
butive Education classes, the report stated the following
facts:

Enrollments in adult Distributive Education classes
increased 18.9 % over 1964—65 and were almost 38 %
ahead of the five-year average. As in the past, many
of the classes were offered through university extension
services, with only a limited number of high schools

providing distributive classes for out-of-school youth
and adults.15

 

13Ibid., p. 4.
14Ibid., p. 21.

l5Ibid., p. 36.

 

 

184

One of the problems encountered in implementing federal
legislation was discussed concerning adult Office Educa-
tion. The report explained as follows:

Heretofore, adult Office Education classes were
not reimbursed. Traditionally, such classes have been
offered as part of the local adult education program
and, by virtue of enrollment fees collected, have proved
self-supporting, and hence, inelegible for reimbursement
from vocational education funds. Consequently, only a
limited number of schools were able to justify their re-
quests for reimbursement of instructional costs for
courses they intended to offer.

However, adult programs were approved for reimburse-
ment in thirty-one high schools and five community col-
leges with a total enrollment of 5,409 students. In
the supplementary adult classes offered by high schools,
the enrollments by occupational classification ranked
as follows: typist 33%, stenographer 24%, office machines
Operigor 19%, accountant 8%, and other office occupations
16%.

Adult Homemaking classes were reviewed in the report in
combination with junior college evening school. The follow-
ing excerpt treats this area of instruction:

Total enrollment in reimbursed adult Homemaking
classes for the year was 16,614 which included 705 men.
This was a total increase of 1,010 over the previous
year. One thousand eighty-nine classes were held in
57 communities. Such classes included: clothing care
and selection; food selection and preparation; home
management; home furnishings; bishop sewing, tailoring,
and clothing construction; parent education; and child
development. In Grand Rapids, the adult program, which
part of the Junior College Evening School, was designed
to upgrade the skills and knowledge of those who were
employed in commercial food service. Both men and
women were enrolled, totaling forty-two.l7

 

l6Ibid., p. 61

17Ibid., pp. 48—49.

185

Concerning Trade and Industrial Education, the report is
more specific with regard to secondary school programs.

It stated that of the 39,185 adults receiving instruction,
about 20 per cent were enrolled by secondary school sys-
tems.18 The remaining instructional area, Practical Nurse
and Other Health Occupations, was described as follows:

Practical Nursing Education is offered at twenty-
four centers, nine of which are financed by MDTA funds.
Of these programs, twelve are administered by community
colleges, nine by local boards of education, two by
universities, and one by a hospital.19

The construction of area vocational education schools under
the Vocational Education Act of 1963 was treated in the re—
port in terms of the educational level of programs provided
in the following manner:

During fiscal 1966, a total of eleven construction
projects were approved under provision of the Act of
1963. Seven of these were for community college con—
struction and four were high school projects. The
former will provide improved and expanded facilities
for post-secondary and adult education. The high
school facilities will provide facilities primarily
for secondary vocational education programs. In many
cases, the facilities will also be used by sponsoring
local school districts for adult education in vocational
and technical education.20

This review of the status of vocational education in the

State of Michigan can best be summarized in the words of

the State Superintendent of Public Instruction written as

 

18Ibid., p. 75.
l9Ibid., p. 68.

201bid., p. 5.

 

186

a foreword in the report. Ira Polley wrote. "This is the
year in which the full impact of the Vocational Education
Act of 1963 is reflected in the growth of reimbursed pro-
grams in local school districts and community colleges.21

Federal Influence on
Curriculum and Enrollment

 

 

It is evident from the data presented that the num-
ber of districts offering adult education courses and the
number of students enrolled has increased because of fed-
eral legislation. In order to obtain specific information
in regard to these increases, administrators were asked to
respond to questions relative to their individual districts.

The following subdivisions describe the results obtained.

Total number of courses offered.--Table 68 compares
federally and non-federally funded districts in regard to
federal influence on the total number of adult courses
offered. The data reveal that 58 districts (40.56 per
cent of all districts surveyed) reported increased numbers
of courses offered due to federal influence. Three of the
districts did not receive federal funds, but were influenced
indirectly. One district not receiving federal funds re-
ported decreased numbers of courses being offered. Table 69

which compares opinions of administrators in this respect

 

21Ibid., p. V.

 

187

Table 68. Comparison of federal legislative influence be—
tween federally and non-federally funded dis-
tricts on the total number of adult courses

 

 

 

offered.
Federally Non-Federally
Funded Funded
Districts Districts Total
Total N= 76 N= 67 N=l43
(1) Increased number 72.37% 4.48% 40.56%
N: 55 N= 3 N: 58
(2) Decreased number 0.00% 1.49% 0.70%
(3) Unchanged number 22.37% 86.57% 52.45%
N: 17 N= 58 N= 75
(4) No opinion 5.26% 8.96% 6.99%

N: 4 N= 6 N= 10

 

 

188

 

 

 

 

Table 69. Comparison of federal legislative influence be-
tween legal classifications of districts on the
total number of adult courses offered.

Class Class Intermed.
3 4 Class Total

Total N: 71 N= 67 N= 3 N=l43

Increased 100.00% 50.70% 26.87% 66.67% 40.56%
number N: 36 N= 18 N= 2 = 58
Decreased 1.41% 0.00% 0.00% 0.70%
number = 1 = 0 N: 0 N: 1
Unchanged 45.07% 62.69% 33.33% 52.45%
number N: 32 N= 42 = l N: 75
No opinion 2.82% 11.94% 0.00% 6.99%

= 2 N: 8 = 0 N: 10

 

 

189

according to legal classifications of school districts re-
veals that both second class districts and two of the three
intermediate school districts reported increased course
offerings due to federal legislative influence. The data
reveal that the greatest number of districts in a single
class reporting increases were third class districts. Al-
though there were only four more districts in that class
among the population surveyed than in the fourth class,
there were exactly twice as many third class districts re-
porting increased course offerings. Table 70 compares the
data by geographic areas. Area 2 contained the greatest
number of districts with increased numbers of courses due
to federal influence. There were 25 of these in Area 2.
Eighteen districts in Area 1 reported increases. This was
51.43 per cent of the districts in that area. Area 3 con—
tained 15 such districts which were 42.86 per cent of the

districts in that area.

Total adult enrollment.—-Since the data presented

 

from historical records indicate that the total adult en-
rollment of public school district adult programs had in—
creased, administrators were asked to check responses to
indicate if federal legislation was responsible for a part
of such increases in their districts. This information is
compared according to federally and non-federally funded
districts in Table 71. The data reveal that 54 districts

(71.05 per cent) of those receiving federal funds increased

190

 

 

 

 

Table 70. Comparison of federal legislative influence be—
tween geographic areas on the total number of
adult courses offered.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Increased number 51.43% 34.25% 42.86% 40.56%

offered N= 18 N= 25 N= 15 N= 58

(2) Decreased number 2.86% 0.00% 0.00% 0.70%

offered = l N: 0 N: 0 N: l

(3) Unchanged number 40.00% 60.27% 48.57% 52.45%
offered N= 14 N= 44 N= 17 N= 75

(4) No opinion 5.71% 6.85% 8.57% 6.99%
= 2 N: 5 N: 3 N: 10

 

191

Table 71. Comparison of federal legislative influence be-

tween federally and non-federally funded dis-
tricts on the total adult enrollment.

 

 

 

 

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Increased 71.05% 7.46% 41.26%
enrollment N= 54 N= 5 N: 59
(2) Decreased 1.32% 0.00% 0.70%
enrollment N= l N: 0 N: l
(3) Unchanged 21.05% 79.10% 48.25%
enrollment N= 16 N= 53 N= 69
(4) No opinion 5.26% 14.93% 9.79%

 

192

their total adult enrollment. Five administrators reported
that in their Opinions increases in their total enrollment,
in spite of their not implementing federal programs, were
indirectly due to such programs. Fifty-nine districts re-
ported increased total adult enrollment due either directly
or indirectly to federal programs. These were 41.26 per
cent of the population surveyed. Table 72 compares the
data by legal classifications and shows that the most dis—
tricts influenced regarding increased enrollments were third
class districts. Thirty-five third class districts and
nineteen fourth class districts reported increased enroll-
ment. Both second class districts and all three intermediate
districts reported increases. Table 73, comparing the data
by geographic areas, reveals that the greatest number of
districts reporting increased enrollment was in Area 2.
Twenty-six districts in Area 2 reported increases compared
to 17 in Area 1 and 16 in Area 3. However, the greatest
proportional increase considering the number of districts
contained in each area was in Area 1. This was 48.57 per
cent of that group. The districts in Area 3 represented
45.71 per cent of that group, and those in Area 2 repre-

sented 36.62 per cent of that group.

193

 

 

 

 

Table 72. Comparison of federal legislative influence be-
tween legal classifications of districts on the
total adult enrollment

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Increased 100.00% 49.30% 28.36% 100.00% 41.26%

enrollment N= 2 N: 35 N= 19 N= 3 N= 54

(2) Decreased 0.00% 0.00% 1.49% 0.00% 0.70%

enrollment N= 0 = 0 N: l N: 0 N: l

(3) Unchanged 0.00% 43.66% 56.72% 0.00% 48.25%
enrollment N= 0 N: 31 N= 38 N= 0 N: 69

(4) No opinion 0.00% 5.63% 14.93% 0.00% 9.79%
N: 0 = 4 = 10 N= 0 N= 14

 

194

 

 

 

 

Table 73. Comparison of federal legislative influence be-
tween geographic areas on the total adult en-
rollment.

Area 1 Area 2 Area 3 Total

Total N= 35 N= 73 N= 35 N=l43

(1) Increased 48.57% 36.62% 45.17% 41.26%

enrollment N= 17 N= 26 N= 16 N= 59

(2) Decreased 0.00% 1.37% 0.00% 0.70%

enrollment N= 0 N: l = 0 = 1

(3) Unchanged 40.00% 53.42% 45.71% 48.25%
enrollment N= 14 N= 39 N= 16 N= 69

(4) No opinion 8.57% 10.96% 8.57% 9.79%
N: 3 N: 8 ='-' 3 N: 14

 

 

195

Courses requiring student fees and tuition.—-A

 

study of instructional areas comparing increases and de-
creases in numbers of courses offered in general adult edu-
cation indicated there might have been instances in which
courses were drOpped from the curriculum because of poor
enrollment due to the influence of tuition-free federal
programs. In order to determine the influence of federal
programs on courses requiring tuition or fees, administra-
tors were requested to respond to one of four items which
best described the situation in their districts. Table 74
compares those responses between federally funded and non-
federally funded districts. The data show that seven of
the 143 districts responding reported reduced enrollment
in courses requiring tuition or fees. This was 4.90 per
cent of the total population responding. There was a
negative effect in some cases on such courses. However,
twenty-six districts, or 18.18 per cent of the population
responding, had been directly or indirectly influenced

by increases in enrollment in courses requiring student
fees or tuition. Almost one-half of all federally funded
districts reported no change due to federal programs.
Table 75 compares the data between legal classifications
of districts. Both second class districts reported that
there had been increases in enrollment in tuition courses.
Enrollment in these courses were unchanged in all three

intermediate districts. The greatest change occurred in

196

 

 

 

 

Table 74. Comparison of federal legislative influence be-
tween federally and non-federally funded dis—
tricts on courses requiring student fees and
tuition.

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Reduced 7.89% 1.49% 4.90%
enrollment N= 6 N: 1 N: 7
(2) Increased 31.58% 2.99% 18.18%
enrollment N= 24 N= 2 N: 26
(3) Unchanged 46.05% 82.09% 62.94%
enrollment N= 35 N= 55 N= 90
(4) No opinion 11.84% 13.43% 12.59%

 

197

 

 

 

 

Table 75. Comparison of federal legislative influence be—
tween classifications of districts on courses
requiring student fees and tuition.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Reduced 0.00% 8.45% 1.49% 0.00% 4.90%

enrollment N= 0 N: 6 = 1 = 0 N: 7

(2) Increased 100.00% 26.76% 7.46% 0.00% 18.18%

enrollment N= 2 N= 19 = 5 = 0 N: 26

(3) Unchanged 0.00% 56.34% 73.13% 33.33% 62.90%
enrollment N= 0 N: 40 N= 49 = 1 N= 90

(4) No opinion 0.00% 7.04% 17.91% 33.33% 12.59%
n= 0 N: 5 N: 12 = 1 N: 18

 

198

third class districts. Six of these districts reported
decreased enrollment in courses charging student fees or
tuition. Nineteen of them reported increases. One fourth
class district reported a decrease, and five reported in-
creases. In Table 76 the data are compared between geo-
graphic areas. Fourteen districts in Area 1 reported
changes in enrollment in courses charging tuition. Four

of these reported decreases and ten reported increases.

In Area 2 there were 12 districts in which such courses

were affected. Two reported decreased enrollment and eleven
reported increases. Six districts in Area 3 reported changed
enrollment. One district reported decreased enrollment and

five reported increases.

Community and adult education needs.--Since there

 

were some changes in curriculum among the districts in
which reduced enrollments due to federal programs were
indicated, administrators were requested to respond to one
of four items best describing the general affect of federal
legislation on their districts' fulfillment of community
adult education needs. Table 77 compares the data between
federally and non-federally funded districts. In 43.36
per cent of all districts these needs were reportedly met
more completely. In 50.35 per cent of them there was no
influence. Four districts receiving no federal funds re-
ported that federal legislation had indirectly contributed

to greater fulfillment of community needs in their districts.

199

 

 

 

 

Table 76. Comparison of federal legislative influence be-
tween geographic areas on courses requiring stu—
dent fees and tuition.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Reduced 11.43% 2.74% 2.86% 4.90%

enrollment N= 4 N: 2 = l N: 7

(2) Increased 28.57% 15.07% 14.69% 18.18%

enrollment = 10 N= 11 = 5 N: 26

(3) Unchanged 51.43% 69.86% 60.00% 62.94%
enrollment = 18 N= 51 N= 21 N= 90

(4) No Opinion 8.57% 12.33% 17.14% 12.59%
N: 3 N: 9 N: 6 N: 18

 

200

 

 

 

 

Table 77. Comparison of federal legislative influence be-
tween federally and non-federally funded dis-
tricts on the fulfillment of community's adult
education needs.

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
(1) Needs being met 76.32% 5.97% 43.36%
more completely = 58 N= 4 N: 62
(2) Needs being met 0.00% 0.00% 0.00%
less completely = 0 N: 0 N: 0
(3) Unchanged fulfill- 18.42% 86.57% 50.35%
ment of needs N= 14 N= 58 N= 72
(4) No Opinion 5.26% 7.46% 6.29%

 

201

Table 78 compares the data by legal classification of dis"
tricts. The greatest number (39 districts) reporting in-
creased fulfillment were third class districts (54.93 per
cent of these districts). There were 18 fourth class
(26.87 per cent), both second class, and all three inter-
mediate districts which reported such increases. Table 79
compares the data between geographic areas of the state.
Twenty-one districts in Area 1 reported increased fulfill-
ment. Twenty-five districts in Area 2 reported the same
while sixteen in Area 3 also reported greater fulfillment

of community needs. In no district was a decrease reported.

Economic status of enrollees.-—The data have indi-

 

cated increased enrollments because of anti-poverty aspects
of federal legislation. Since literacy and basic education
training is provided in one form or another in all such
current federal legislation, administrators were requested
to respond to items describing possible changes in economic
status of clientele. Table 80 compares these responses
between federally and non-federally funded districts.
Within the total pOpulation responding there were 37.76

per cent, or 54 districts, which reported that there had
been a shift toward lower income groups enrolling. Two
districts reported greater enrollment of higher income
groups. Fifty-five, or 38.46 per cent of all districts,
reported no change in the economic status of enrollees.

Table 81 compares the data according to legal classifications

202

 

 

 

Table 78. Comparison of federal legislative influence be-
tween classifications of districts on the ful-
fillment of community's adult education needs.

Class Class Class Intermed.
2 3 4 Class Total

Total N: 2 N: 71 N= 67 N= 3 N=l43

(1) Needs being 100.00% 54.93% 26.87% 100.00% 43.36%

met more N: 2 N: 39 N= 18 N= 3 N: 62
completely

(2) Needs being 0.00% 0.00% 0.00% 0.00% 0.00%

met less = 0 N: 0 = 0 = 0 = 0
completely

(3) Unchanged 0.00% 43.66% 61.19% 0.00% 50.35%

fulfillment = 0 N: 31 N= 41 = 0 N: 72
of needs

(4) No Opinion 0.00% 1.41% 11.94% 0.00% 6.29%

= 0 = l N: 8 = 0 = 9

 

203

 

 

 

 

Table 79. Comparison of federal legislative influence be-
tween geographic areas on the fulfillment of
community's adult education needs.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

(1) Being met more 60.00% 34.25% 45.71% 43.36%

completely N= 21 N= 25 = 16 = 62

(2) Being met less 0.00% 0.00% 0.00% 0.00%

completely = 0 = 0 = 0 N: 0

(3) Unchanged 37.14% 57.53% 48.57% 50.35%
fulfillment = 13 N= 42 = 17 N= 72

(4) No opinion 2.86% 8.22% 5.71% 6.29%
= l = 6 = 2 N: 9

 

204

Table 80. Comparison of federal legislative influence be"
tween federally and non-federally funded dis-
tricts on the economic status of enrollees.

 

 

 

 

Federally Non-Federally
Funded Funded
Districts Districts Total
Total N: 76 N= 67 N=l43
Shifted enrollment to:
(1) Lower income 56.58% 16.42% 37.76%
groups N= 43 N= 11 N= 54
(2) Higher income 2.63% 0.00% 1.40%
groups N= 2 N: 0 N: 2
(3) Unchanged 22.37% 56.72% 38.46%
N= 17 N= 38 = 55
(4) No Opinion 18.42% 28.36% 23.08%
= 14 = 19 N= 33

 

205

Table 81. Comparison of federal legislative influence be—
tween legal classifications of districts on the
economic status of enrollees.

 

 

Class Class Class Intermed.
2 3 4 Class Total

 

Total N: 2 N: 71 N= 67 N= 3 N=l43

 

Shifted enroll—
ment toward:

(1) Lower income 100.00% 40.85% 32.84% 33.33% 37.76%

N: 2 N: 29 N= 22 = l N: 54

(2) Higher income 0.00% 1.41% 0.00% 33.33% 1.40%
groups N= 0 = l = 0 = l = 2

(3) Unchanged 0.00% 36.62% 43.28% 0.00% 38.46%
N: 0 N: 26 N= 29 = 0 N: 55

(4) No Opinion 0.00% 21.13% 25.37% 33.33% 23.08%

N= 0 N= 15 N= 17 = l N: 33

 

206

of districts. A shift toward lower income groups was re-
ported by both second class districts and one of the inter-
mediate school districts. Twenty-nine third class districts
and 22 fourth class districts also reported a change in that
direction. One intermediate district reported greater en—
rollment of higher income groups, and one third class dis-
trict also reported an increase in that direction. Table 82
compares shifts in enrollment between geographic areas.

Area 2, containing the greatest number of districts, also
contained the greatest number reporting changes in economic
status. Twenty-three districts reported changes in Area 2.
One of these districts reported a shift to higher income
groups. Nineteen districts in Area 3 reported a shift.

One of these districts was in the direction of higher in-
come groups. Area 1 contained 14 districts in which shifts

were toward lower income groups.

Summary
It would appear that Hypothesis IV has been sub-

statiated. Public school district administrators have
responded to curriculum guidance by the federal government
by implementing federal education legislation. The data
reveal that some courses were offered more often in fiscal
year 1966 than was evident over the previous five-year
period. A few were offered less often. Almost 3000 more
were offered in 1966 than in 1964. Of the 143 districts

surveyed 40.56 per cent reported increased numbers of

207

 

 

 

 

Table 82. Comparison of federal legislative influence be-
tween geographic areas on the economic status of
enrollees.

Area 1 Area 2 Area 3 Total

Total N: 35 N= 73 N= 35 N=l43

Shifted enrollment

toward:

(1) Lower income 40.00% 30.14% 51.43% 37.76%

groups N= 14 N= 22 N= 18 N= 54

(2) Higher income 0.00% 1.37% 2.86% 1.40%

groups = 0 N: l N: l = 2

(3) Unchanged status 34.29% 39.73% 40.00% 38.46%
N= 12 N= 29 N= 14 N= 55

(4) No opinion 25.17% 30.14% 5.71% 23.08%
= 9 N: 22 N= 2 N: 33

 

 

 

208

courses being offered because of federal influence. One
district reported decreased numbers of courses. Both
second class districts, two of the three intermediate dis-
tricts, 50.70 per cent of the third class districts, and
26.87 per cent of the fourth class districts reported in-
creased numbers of courses offered due to federal influence.
The largest proportional increase in any area of the state
was 48.57 per cent in the densely populated area. The
least was 36.62 per cent in the median area of population
density while the sparcely populated area increased its
courses in 45.71 per cent of its districts.

There was some indication that federal programs
influenced the type of courses in which students enrolled.
However, 26 districts reported increased enrollment in
courses for which tuition or fees were charged while 7
reported decreased enrollment due to federal programs.
Increased enrollments in courses charging tuition or fees
were reported by all classes of districts. Six third class
and 1 fourth class district reported decreases. In this
regard it is obvious that federal education legislation has
been effective in guiding curriculum of adult programs.

The greatest number of districts reporting decreases in
enrollment for tuition courses was in the densely populated
area of the state while the greatest number reporting in-

creases were in the median area.

 

 

209

In the Opinion of administrators federal programs
resulted in increased fulfillment of community needs in
43.36 per cent Of the districts. In no case were needs
met less completely. Fulfillment of community adult edu-
cation needs was not changed in 43.66 per cent of the
third class districts and in 61.19 per cent of the fourth
class districts.

Anti-poverty aspects of federal legislation were
reflected in the opinions of administrators concerning the
economic status of enrollees. Fifty-four districts reported
enrollment shifts toward the lower income groups. Two
districts were in the second class, 29 in third class, 22
in fourth class, and l in the intermediate class. They
were distributed over all geographic areas with 14 in the
most densely pOpulated area, 22 in the median area of

population density, and 18 in the sparcely pOpulated area.

 

CHAPTER V

SUMMARY, CONCLUSIONS, AND RECOMMENDATIONS

The purpose of this study was to relate specific
changes that have occurred in Michigan public school dis-
trict adult education programs to the influence of federal
education legislation. Underlying this objective was the
purpose of providing information which might serve to stimu—
late further research concerning methods of financing adult
education as it is now being conducted through the media
of secondary public school districts. Also, it was hOped
that the results might be of value to educational agencies
in improving administrative practices.

Four hypotheses were used to guide the research
along specific lines of investigation. The hypotheses
focused the research on four aSpects of public school adult
education. These aspects were examined by means of histori-
cal reports and related data obtained through a question-
naire survey directed to the entire population of public
school district adult education administrators in Michigan.
The four aspects examined were finances, administration,
teaching staff, and curriculum. The questionnaire included
administrators' evaluations of federal legislative influence
in these regards within their individual districts.

210

211

Summary
Each of the hypotheses was substantiated by the

research based on opinions expressed by public school adult
education administrators. Historical data generally con-
firmed the opinions of administrators. The findings re-
vealed that federal adult education legislation has caused
increases in: (1) the expenditure of local tax funds in
39 districts (27.27 per cent of all districts), (2) the
number of administrators employed in 28 districts (19.58
per cent of all districts), (3) the employment of teachers
trained to teach adults in 28 districts, and (4) the total
number of adult education courses Offered in 58 districts
(40.56 per cent of all districts).

The following subdivisions present the research
results in regard to the hypotheses according to the strati—

fications of the population utilized in this investigation.

Finances.-—More third class districts (26) reported

 

increased expenditure of local tax monies than any other
class. Both second class districts, 10 fourth class dis-
tricts, and 1 intermediate district reported such increases.
The densely pOpulated area (1914.68 persons per
mile) contained more districts (15) reporting such increases
than any other. The median area of population density
(151.66 persons per square mile) contained 14 districts and
the sparcely populated area (21.84 persons per square mile)

contained 10 districts reporting such changes.

 

 

 

212

Administration.-—More third class districts (15)

 

reported increases in the total number of administrators
and supervisors than any other. Both second class districts,
8 fourth class districts, and all three intermediate dis-
tricts reported such increases.

The median area of population density contained the
greatest number of districts (14) reporting such increases.
The densely pOpulated area contained 6 districts and the

sparcely pOpulated area contained 8 districts.

Teaching staff.-—More third class districts (18)

 

reported increased employment of teachers trained to teach
adults than any other. Both second class districts, 7
fourth class districts, and 1 intermediate district reported
such increases.

The median area of population density contained the
greatest number of districts (13) reporting such increases.
The densely populated area contained 10 districts and the

sparcely populated area 5 districts.

Curriculum.—-More third class districts (36) re-

 

ported increased numbers of adult courses offered than any
other. Both second class districts, 18 fourth class dis-

tricts, and 2 intermediate districts reported such increases.

213

The median area of pOpulation density contained
the greatest number of districts (25) reporting such in-
creases. The densely populated area contained 18 districts

and the Sparcely pOpulated area 15 districts.

Other findings.--State aid was considered more im—

 

portant to adult program promotion than federal aid by dis-
tricts receiving federal funds. State aid was most often
checked by federally funded districts (64.47 per cent) as
one of the three most productive elements promoting public
school adult education while news media was named most
often by non-federally funded districts (71.64). A greater
proportion (34.29 per cent) of administrators in sparcely
pOpulated areas considered federal funds important to pro-
gram promotion than in either the densely populated area
(25.71 per cent) or the median area (24.86 per cent).
Federal funds were the cause of 25 districts (17.48 per
cent of all districts) initiating adult education programs.
There were 7 districts (4.90 per cent of all districts)
which remained in operation because of federal funds, and
40 districts (27.97 per cent of all districts) increased
their fulfillment of community adult education needs be-
cause of federal funds.

Although lack of funds was most often considered
by administrators (55.94 per cent of the total) to be the
most serious barrier to program develOpment, only 3.9 per

cent of federally funded districts and 8.96 per cent of

 

214

non-federally funded districts considered the use of ad-
visory committees to be an important factor in program
develOpment. Lack of local interest was the second most
often checked item (45.45 per cent of all districts), but
lack of information concerning community adult education
needs was named by 33.57 per cent and was the third most
Often named item. Only 26.57 per cent of all Michigan
public school adult education programs use advisory com—
mittees for program promotion. Two-thirds of these com-
mittees are used in federally funded districts in all
geographic areas of the State.

The present enrollment in adult basic education is
insignificant in comparison to the target pOpulation in
Michigan. The total enrollments in adult basic education
for fiscal years 1965 and 1966 represent only about one and
one-third per cent of the group to which the program is
directed. Clerical and record keeping tasks involved with
implementation of federal programs are a problem. Such
tasks increased in 80.26 per cent of federally funded dis—

tricts because of federal legislation.

Recommendations and Conclusions
Since the greatest impact of federal adult education
legislation has occurred in third class districts rather
than fourth class and intermediate school districts, the
attention of researchers and state and federal agencies

should be directed to those school districts of less than

215

twenty-four hundred day school children in promotion of
adult programs. The results of this study indicate that
the administrative services of intermediate school districts
are not utilized to a great extent in the promotion of adult
education in Michigan. Intermediate school districts can
be of great assistance in organizing adult education classes
among communities too small or with tax bases inadequate
for providing individual programs.

The need for adult education is great in Michigan.
Further efforts should be made by the Michigan State Board
of Education to provide graded classes at all levels of
adult education on an equal basis financially with the pub-
lic day school program. The High School Completion Act of
1964 is a first step in this direction and is welcomed by
most administrators.

Federal adult education legislation has not ap-
proached the potential of which it is capable in Michigan
in providing equal educational Opportunities for all citi-
zens. Many administrators are seriously interested. A
recommendation growing out of this investigation is that
the Federal Congress enact legislation subsidizing high
school completion programs in adult schools on an equal
basis with the States. Such legislation would be comple-
mentary to present adult vocational and basic education
legislation in providing general education beyond the

eighth grade.

    

216

A number of recommendations for further research
were derived from this study. One primary concern seems
to be the need for coordinating federal adult education
programs in Michigan. Although they may necessarily re-
main as separate divisions, methods of collecting data,
procedures of reporting and recording data, and methods of
integrating the efforts of administrators and coordinators
should be unified.

A survey study inquiring into the training needs
of Michigan industry concerning all non-professional occu—
pations and a study of educational provisions afforded by
Michigan's industries would be helpful in planning and
coordinating individual programs and state programs.

Since the use of advisory committees is recommended
by state departments of education for many aspects of pro—
gram promotion, a study comparing procedures between suc—
cessfully Operating committees and those not considered
successful would be informative.

A comparison of educational provisions of social
and religious agencies would be useful in coordinating
such programs with those of the public schools.

A feasibility study to determine if advertising
and program promotion through television and newspapers

by the State Department of Education would be valuable.

 

 

217

Implications

 

Education for all adults is in an early stage of
development. Future provisions of federal and state govern-
ments may provide continued formal education for all citi—
zens. Local governments are delegating much of their
responsibility to federal and state agencies. The process
of social evolution may eventually cause local school boards
to be abandoned in favor of state boards of education.

These state boards may report and receive much of their
financial support and guidance from a federal educational
agency.

State boards of education might assume the re—
sponsibilities now partially fulfilled by adult education
administrators. These are (l) maintaining a major responsi-
bility for coordinating all independent agencies interested
in adult education, (2) analyzing community adult education

needs, and (3) develOping programs suited to those needs.

 

BIBLIOGRAPHY

 

 

BIBLIOGRAPHY

Anttonen, Elmer S. "The Relationship of Adult Education
Program DevelOpment in Michigan to State Fiscal
Policy." Unpublished Ed.D. thesis, Michigan State
University, East Lansing, 1966.

Benson, Charles S. The Economics of Public Education.
Boston: Houghton Mifflin Company, 1961.

Borg, Walter R. Educational Research: An Introduction.
New York: David McKay Company, 1963.

Brunner, Edmund de S. Overview of Adult Education Research.
Chicago: Adult Education Association of the U.S.A.,
1959.

Carr, William G. "Who Makes Educational Policy at the
Federal Level?" The School Administrator, Vol. XXIV,

No. 3, November, 1966, pp. 4a-4b.

Carstenson, Blue. "Adult Education and Federal Legislation,"
Adult Leadership, Vol. XII, No. 8, February, 1964,
pp. 249-250.

 

Cass, Angelica W. and Crabtree, Arthur P. Adult Elementary
Education. New York: Noble and Noble, Publisher,
Inc., 1956.

 

Clark, Burton R. Adult Education in Transition: A Study
of Institutional Insecurity. University of Cali-
fornia Publications in Sociology and Social Insti—
tutions, I, No. 2. Berkeley: University of
California Press, 1958.

. "The Marginality of Adult Education." Notes
and Essays No. 20. Center for the Study of Liberal
Education for Adults, Chicago: 1958.

 

 

Crabtree, Arthur P. "War on Poverty," Adult Leadership,
Vol. XIV, NO. 5, November, 1965, p. 161.

. "War on Poverty," Adult Leadership, Vol. XIII,
No. 10, April, 1965, pp. 317-318.

 

219

220

Department of Education, State of Michigan. An Analysis
of the Revenues and Expenditures of the Michigan
Public Schools for 1965-66. Lansing: Bulletin
1011.

 

 

 

. State Aid Act of 1966—67. Lansing: Undated.
(Mimeographed), pp. 16.

 

Department of Public Instruction, State of Michigan.
Annual Descriptive Report of the Division of the
Department of Vocational Education, Department of
Education for the Fiscal Year Ending June 30, 1966.
Lansing: The State Board of Education, 1967.

 

 

. "Citizens' Advisory Committee in Education."
Lansing: Michigan Department of Public Instruction,
(Mimeographed), pp. 2.

 

. Public School General Adult Education in Michigan,
1965-66, Statistical Information. Lansing: Publi-
cation NO. 512, 1966.

 

 

Derbyshire, R. L. "The Sociology of Exclusion: Implications
for Teaching Adult Illiterates," Adult Education,
Vol. XVII, No. 1, Autumn, 1966, pp. 3—11.

 

Gilland, Thomas McDowell. "The Origin and DevelOpment of
the Powers and Duties of the City School Superin-
tendent." Unpublished Ph.D. dissertation, The
University of Chicago, Chicago, 1935.

Good, Carter V., Barr, A. S., and Scates, Douglas C. The
Methodology of Educational Research. New York:
Appleton-Crofts, Inc., 1941.

 

Griffith, William S. "The Role of Public School Adult
Education," High School Journal, Vol. XLIX, No. 2,
November, 1965, pp. 57-63.

 

Hand, 8. E. "Understanding the Under-Educated Adult as a
Learner," The Florida Adult Educator, Vol. XVI,
No. l, January-April, 1966, pp. 4-7.

 

Hartke, Vance. "At the Edge of a Brave New World," Adult
Leadership, Vol. XIV, No. 4, October, 1965, pp.
117-118, 144.

 

Havighurst, Robert J. and Neugarten, Bernice L. Society
and Education. (3rd Ed.) Boston: Allyn and
Bacon, Inc., 1967.

 

221

 

Hunnicutt, C. W. (ed.) Urban Education and Cultural Depri-
vation. Syracuse, N.Y.: Syracuse University Press,
1964.

James, H. Thomas. "Emerging Patterns of Federal, State,

and Local Control of Education," The School Adminis-
trator, Vol. XXIV, No. 5, January, 1967, pp. 6a-6b.

 

Johnstone, John W. C., and Ramon J. Rivera. Volunteers for
Learning: A Study of the Educational Pursuits of
American Adults. Chicago: Aldine Publishing Com-
pany, 1965.

 

 

 

Kempfen,Homer. Adult Education. New York: McGraw-Hill
Book Company, 1955.

 

. Financing Education for Adults and Out-Of—School
Youth. Washington, D.C.: U.S. Government Printing
Office, 1949.

 

 

Kidd, James Robbins. Financinngontinuing Education. New
York: Scarecrow Press, 1963.

 

Little, Lawrence C. A Bibliography of Doctoral Disserta-
tions of Adults and Adult Education. Pittsburgh:
University of Pittsburgh Press, 1963.

 

 

Knowles, Malcolm S. Handbook of Adult Education in the
United States. Chicago: Adult Education Associ-
ation of the U.S.A., 1960.

 

 

London, Jack. "The Career of the Public School Adult
Administrator," Adult Education, Vol. X, No. 1,
Autumn, 1959, p. 10.

 

Luke, Robert A. "The Signs of Revolution in Public School
Education," Adult Leadership, Vol. XIII, No. 7,
January, 1965, pp. 203-204, 237.

 

National Education Association, The American Association
of School Administrators. It CAN Be Done: Practical

 

Suggestions for Building an Adult Education Program
That Has Impact. Washington, D.C.: National Edu-
cation Association, 1964.

 

 

, Division of Adult Education Service. A Study of
Urban Public School Adult Education Programs of the
United States. Washington, D.C.: National Educa-
tion Association, 1964.

 

 

 

222

, Research Division. Opinions of School Superin—
tendents of Adult Education. Washington, D.C.:
National Education Association, 1964.

 

 

 

National Association of Public School Adult Educators.
Adult Education in the Public Schools. Washington,
D.C.: National Association of Public School Adult
Educators, 1961.

 

National Association for Public School Adult Education.
Public School Adult Education 1966 Almanac.
Washington, D.C.: National Association for Public
School Adult Education, 1966.

 

Madry, Arthur C. "The Functions and Training Needs of
Adult Education Directors in Public School Systems,"
Unpublished Ph.D. dissertation, Ohio State Univer—
sity, Columbus, 1963.

McLernon, Thomas J. 19th Annual Public School Adult Edu-
cation Status Study. Division of Adult Education
Service. Washington: D.C.: National Education
Association, 1964.

 

 

Miller, Herman P. Rich Man, Poor Man: The Distribution
of Income in America. New York: Thomas Y. Crowell
Co., 1964.

 

 

Olds, Edward B. Financing Adult Education in America's
Public Schools and Community Councils. Washington,

 

 

 

 

D.C.: Adult Education Association, 1954.

Radcliffe, Charles H., and Holden,John B. "Adults in the
Public Schools," School Life, Vol. XL, April, 1958,
pp. 7-10.

Rice, Arthur H. (ed.). "Intermediate Districts, In Brief,"
Michigan Education Journal, Vol. XLIV, May, 1967,
p. 8.

Shaw, Nathan C. "Impact," Audiovisual Instruction, Vol. XI,

 

No. 4, April, 1966, p. 248.

Thiede, Wilson. "Research and Investigations in Adult Edu-
cation," Adult Education, Vol. XVI, NO. 4, Summer,
1966, pp. 195-238.

 

U.S. Bureau of the Census. U.S. Census of POpulation: 1960,
Number of Inhabitants, Michigan. Final Report PC(l)-
24A. Washington, D.C.: U.S. Government Printing
Office, 1961.

 

223

. U.S. Census of Population: 1960, General and
Social Characteristics, Michigan. Final Report
PC(l)—24C. Washington, D.C.: U.S. Government
Printing Office, 1962.

 

U.S. Office of Education, Division of Adult Education
Programs. Adult Basic Education: Prggram Summary.
Washington, D.C.: U.S. Government Printing Office;
AB—l, March, 1967.

. Department of Health, Education, and Welfare.
Educationally Deficient Adults: Their Education
and Training Needs. Washington, D.C.: Catalog
No. FS 5.213:13029, 1965.

 

 

Van Dalen, Deobold B. Understanding Educational Research.
New York: McGraw-Hill Book Company, Inc., 1962.

Wann, Marine D., and Woodward, Marthine V. Participation
in Adult Education. U.S. Office of Education
Circular No. 539. Washington, D.C.: U.S. Govern-
ment Printing Office, 1959.

 

Ward, Betty Arnett. Literacy and Basic Elementary Education
for Adults. U.S. Department of Health, Education,
and Welfare, OE—13017, Bulletin 1961, No. 9.
Washington, D.C.: U.S. Government Printing Office,

1961.

 

Woodward, Marthine V., and Mason, Ward S. Statistics of
Public School Adult Education. U.S. Office of
Education Circular No. 660. Washington, D.C.:
U.S. Government Printing Office, 1961.

 

 

APPENDICES

 
   

APPENDIX A

Please mail one cOpy of this Form AE-2
form to the Department of Page 1
Education on or before
July 1, 1966-m- Adult Education
Section
State of Michigan
Department of Education

REPORT OF GENERAL ADULT EDUCATION PROGRAM

 

1965-66
Dr. Ira Polley
Superintendent of Public Instruction 1966
Lansing , Michigan Date

I hereby certify that the information and data about classes and enrollments
as recorded herein are correct; and that all adult education teachers hold
valid Michigan teaching certificates.

Legal Name of District Code

 

Address County

 

 

Superintendent of District

Person responsible for your adult education program:

Name: Phone:

 

Address:

 

225

 

 

 

 

—.—_. nl ..-.—....—_ ......_, ... .

'____. .1391“: 4 ~

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m... .—

 

.
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r '|v‘_ ..;;,..‘ ;.{.', .. I ’
'-. . l:.-"
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. 1....-. .

u...”

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

226 Form AE—Z
Part I - Enrollment and Attendance Data: Page 2
iCol. 2 Col. 3 5 Col. 4
Col. 1 §No. of Total Total
Instructional Area Classes $8§§ of Enrollment
‘Taught Instruct ‘__
l. Americanization and Citizenship: include English:
for non-English speaking ‘
i
2. Elementary Education: include grades 1 through 8 i
3. High School Academic Education: include grades 9
through 12
4. Business and Commercial (non—credit) Education:
typing, shorthand, advertising, window display, .1
income tax, etc.
I
5. Health Safety & Driver Education: driver classes, 1
first aid, home nursing, water and firearms safety» 3
etc. g
6. Parent and Family Life Education: all classes
relating to marriage, parenthood, home skills, etC<
7. Classical Education: classes in philosophy, reli-‘ i
gions, Great Books, literature, etc. '
8. Civic and Public Affairs: such as local, communi- i
ty, national and international problems 1
g
9. Practical Arts: include all non-vocational arts i
and crafts classes as plastics, ceramics, garden- :
ing, etc. 3
10. I

Drama and Fine Arts: include all classes in i
i

music, art, drama

 

 

 

 

 

 

11. Personal DevelOpment and Group Relationships:
such as personal psychology, guidance, public
speaking, leadership training
12. Recreational Skills: include all classes designed fi_
to give skill in recreational activities
13. Special Education: include classes for handicapped
adults and parents of handicapped children
14: Non~credit courses Offered by colleges in coopera—
tion with local sChools
15. Other

 

 

 

 

 

 

TOTALS

 

 

 

 

 

     

 

 

 

   

 

 

 

 

 

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- . u_. n. '
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- t I _ ' .. -
' my”: - 2:2."313'; amnion.)
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' 1- . .. .. . ,I :. ... ‘
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:.--..:.- 1.2“
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... _ . . . . .... .......-._-_... . ...... . .. .. .. . .
§ 33 - '.'.:; '.I z -=:-.:.2.'
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,. .. .. . . ..- ...._........ .. .
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. . .. . , . .. . ..._. . .-.............._....._ . . .. .. . .. .
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... .. -.- ....— . . .. .. ....---..‘_.....-... ......_........ . ..... . . .
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...—.....__.._...... . .-.—.....'..... .. .. .. . . .
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.
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:__..._ ..- . . ......'. . . .....i. . . . .... . .-
I-h- ulu— -- . .. ... ..-u I - . - U

.... ...-...... . .. ... ...
— .- . -- . .. ... .. . .

Form AE-2
227 Pa e 3

* Please attach a copy of a brochure describing the school district's adult e ucation

program offered each term during this past year.

Part II - Reimbursable State and Federal Education Programs

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

1L Did your school district conduct classes for adults approved for reimbursement
by the State Office of Vocational Education? Yes_ No
If yes, please complete the following:
F {301,2 E01. 3 Col. 4 Col. 3
Col. 1 No. of otal Clock Total Amount of
Instructional Area Classes ours of Enrollment Money you
’ .J,‘ Tau t n truction Receiv
1” Manpower DevelOpment Training Programs .
i
.4
2. Elementary Education 1
Title II-B of the EOA !
3. Tradesand Industry
4. Homemaking
5. Business Education
6. Others
.TOTALS
L
B. General
1. Were courses offered for high school credit? Yes No .
If "Yes", give total number of individuals enrolled for high school credit during
1965-66 .
2. Were high school diplomas issued to adult graduates? Yes No
If "Yes“, give total number issued by your district .* .
Total number earned to be awarded by another district .
3. Did you conduct programs specifically designed for:
The Aging? Yes __ No
The Young Adult? Yes NO ‘
C. Financial Policies and Practices:
1. List the amount of State Aid you received for high school credit programs conducted

during this fiscal year $

 

a. Total number of people enrolled for high school credit
b. Number of full-time memberships received. Resident
Non-Resident

Total

 

 

 

 

 

__.....- wu- ,.

 

 

1'1“.“

 

.u
....

 

.
.
. -,
" .‘l
{2‘
.
' .
.. ,-_ .
-- ~.,1 ‘
...~
. O‘. '
..
___ ....

.
1. l

31': I) ..-

. \r-_'.‘.|'.
5' "

 

 

 

 

 

 

.. 53"”?
‘.i'. I
.
..s
-. ....‘I
!;... ,.
..,\

 

 

 

."xl '
. 'HH’JJ‘ 'u-i-
. .. ..
-:-.= , $3 .
mgr. 1: '
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.. . .
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. '3‘
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. .-
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D.

228

Form AE-Z
Page 4
What was total receipts collected in student fees for non-credit courses? $

What was the total expenditure for all adult education? $
This includes all funds from state, federal, and local educational agencies.
a. administration

b. teachers' salaries

c. materials and supplies
d. equipment and furniture
e. custodial services

f. plant operation charges

 

 

 

 

 

 

Teachers' hourly wage for instruction averaged: (check one)

 

 

 

 

 

 

$3.00 or less Over $6.00 to $7.00
Over $3.00 to $4.00 Over $7.00 to $10.00
Over $4.00 to $5.00 Over $10.00 to $15.00
Over $5.00 to $6.00 Over $15.00 5

 

 

Personnel Data and Orgapigation:

Check the number which most nearly indicates the amount of professional leadership,
in full-time workers, assigned to adult education:

More than one: between H and %:x
One: less than %:
Between % and 1: none:

Number of teachers of adults employed:
Public adhool professional staff
Non-certified teachers with special adult education certificates ,

Did you involve a committee(s) of citizens in planning or promoting adult classes?
Yes No

Are extra-community collegiate institutions encouraged to channel their adult
class services through a local advisory committee or the schools? Yes No
Do they? Yes No

Haveiyou a written statement of policy governing adult educationuwith regard to
such matters as purpose, finance, articulation, leadership? Yes No
If so, has it been discussed and accepted by the administration?Yes No

Would you like to have a Department of Education Consultant review your program
with you? Yes NO,

. >

...—...

\4

|

- ..r—-

 

.\‘

\n‘

\

 

 

APPENDIX B
MICHIGAN STATE UNIVERSITY EAST LANSING

 

COLLEGE OF EDUCATION 0 DEPARTMENT OF ADMINISTRATION AND HIGHER EDUCATION

April 1h, 1967

There have been dramatic and sweeping changes that have revolutionized
general adult education programs of K—12 school districts in Michigan.
Legislation enacted by the Federal Congress to promote basic and literacy
education has had an unknown impact. This questionnaire is an impor-
tant aspect of a study to determine emerging trends of Federal influence
on program content, administrative leadership, teacher personnel, and
financing of K—12 programs.

Operational details have been secured from AE—2 Forms submitted by
school districts to the Michigan Department of Education for the Years
1960 through 1966. Since administrators of the Michigan K-12 districts
have the primary responsibility in making decisions affecting adult
education programs, the success of the study depends on your assistance.

It is expected that the timeliness of the information from the study
will not only be helpful to the school districts of Michigan and the
Department of Education in Michigan, but that it will also have signifi—
cance to other state departments of education and Federal educational
agencies.

If you would like to have a summary of the results sent to you, please
check the space at the end of the questionnaire. It would be appreci—
ated if you return your completed questionnaire by Wednesday, April 26th.
When folded and stapled, the questionnaire is a pre—stamped, self—
addressed, mailing form.

Thank you kindly for your cooperation and assistance.
Sincerely yours.

jimficalw‘ MW

Floyd Parker William DraperW
Professor, Education and Study Director
Continuing Education

229

REPORT PREPARED BY

 

Name

 

Title

 

School District Class County

This Questionnaire is designed to be completed
either by the Superintendent of Schools, the
Director of General Adult Education, or a

person assigned to the task.

SECTION A
GENERAL INFORMATION - Please indicate which of
the following statements apply to your district.

 

1. This district has a policy statement for adult

education concerning (Check all that apply.)

philOSOphy of adult education.
finances for adult education.
payment and non—payment of fees.

the advocation of completely tax—
supported adult education programs.
established controls for the type of
program it will support.

The three most productive elements romotin
adult education in this district are (Check
only three.)

(1)

2.

 

 

the 1964 State high school completion
law allowing regular pupils regardless
of age to be counted in membership.
Federal funds.

adult education advisory committee.
cooperating businesses.

a full—time director.

news media, daily papers,
word—Of—mouth advertising.
other, please list.

(2)
(3)
(4)
(5)
(6)
(7)
(8)

television.

 

 

3. The three most serious barriers retarding

adult education in this district are (Check
only three.)

_(1)
_(2)
_(3)
_(4)
_(5)
_(6)
_(7)

_(8)

 

 

lack of funds.

shortage of qualified teachers.

lack of administrative support at the
State level.

lack of community interest at the
local level.

lack of interest of the local school
board.

lack of information concerning adult
education needs of the community.
number of agencies that are offering
adult education programs.

other, please list.

 

 

This district has established an "advisory
committee" for adult education compOSed of
(Check all that apply. If you have no
advisory committee, check "none.")

none.

citizens.

faculty.

students.

other, please list.

 

 

230

SECTION B
FISCAL AND ENROLLMENT DATA FOR ADULT EDUCATION
PROGRAM - Many of the items in this section
require knowledge of specific facts and details.
Please feel free to use approximate amounts
and approximate equivalency enrollment.
These figures do not apply to community colleges
or technical schools which may be Operated by
your district.

 

Questions 1 and 2 pertain to the Adult Education
Act of 1966 or the superceded Economic Opportunity
Act, Title II-B, for your district.

1. Total amounts received under this act for
adult education in your district in

1963-64 $
1964—65 $
1965-66 $

 

 

 

Total enrollment of full-time equivalent for
adult students by your district under this
act in

1963-64
1964-65
1965-66

 

 

 

Questions 3 and 4 pertain to the Vocational
Education Act of 1963, PL 88-210, for your
district.

3. Total amounts received under this act for
adult education in your district in

1963-64 $
1964-65 $
1965-66 $

 

 

 

Total enrollment of full-time equivalent for
adult students by your district under this
act in

1963-64
1964-65
1965-66

 

 

 

Questions 5 and 6 pertain to Community Work and
Training Programs, Section 105A, PL 87-543, for
your district.

5. Total amounts received under this act for
adult education in your district in

1962—63 $
1963-64 $
1964-65 $
1965-66 $

 

 

 

 

Total enrollment of full-time equivalent for
adult students by your district under this
act in

1962-63
1963-64
1964-65
1965-66

 

 

 

 

Questions 7 and 8 pertain to Amendments to the
Manpower and Training Act, PL 88-214, for your
district.

7.

8.

Total amounts received under this act for
adult education in your district in

1962-63 $
1963-64 $
1964-65 $
1965-66 $

 

 

 

 

Total enrollment of full—time equivalent for
adult students by your district under this
act in

1962-63
1963—64
1964-65
1965-66

 

 

 

 

Questions 9 and 10 pertain to the Veterans

Readjustment Benefits Act of 1966 for your district. (1) Increased enrollment

9.

10.

11.

Total amounts received for adult education by
your district under this act in

1962-63 $
1963-64 $
1964-65 $
1965-66 $

 

 

 

 

Total enrollment of full—time adult students
by your district under this act in

1962-63
1963-64
1964-65
1965-66

 

 

 

 

Please list any other Federal acts or laws
under which your district adult education
program receives money.

 

Total amount received by your district under
this act for adult education in

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Year Amount
Year Full-time Enrollment
* * * * * *

231

SECTION C
OPINIONS OF ADMINISTRATORS CONCERNING FEDERAL
INFLUENCE - The purpose of this section is to
determine changes in public school district
adult education programs which administrators
feel have either directly or indirectly resulted
from Federal participation within their individual
school districts. Although changes no doubt
occurred, we are concerned only with the changes
that came about as a result of Federal action.
(Check those items that apply to your district.)

 

1. Federal legislation has caused a shift in
characteristics of the TYPICAL ADULT EDUCATION
STUDENT toward

 

___(l) the lower income groups.
___(2) the higher income groups.
___(3) unchanged.
____(4) no opinion.

2. How has Federal action influenced TOTAL ADULT
ENROLLMENT in your district?

(2) Decreased enrollment
(3) Unchanged
(4) NO Opinion

3. How has Federal action affected INSTRUCTIONAL
AREAS REQUIRING STUDENT FEES OR TUITION in
your district?

 

 

 

(1) Reduced enrollment
(2) Increased enrollment
(3) Unchanged

___(4) No opinion

4. How has Federal action affected the TOTAL
NUMBER OF ADULT EDUCATION COURSES OFFERED
in your district?

 

___(1) Increased number of courses offered
____(2) Decreased number of courses offered
___(3) Unchanged
‘___(4) No Opinion

5. How has Federal action affected the TOTAL
NUMBER OF ADULT EDUCATION TEACHERS EMPLOYED
by your district?

 

___fl) Increased total number of adult
education teachers
(2) Decreased total number of adult
___ education teachers
(3) Unchanged
(4) No Opinion

6. How has Federal action affected the TOTAL
NUMBER OF TEACHERS TRAINED TO TEACH ADULTS
in your district?

 

____(1) Increased total number of trained
adult education teachers
(2) Decreased total number of trained
___ adult education teachers
___fS) Unchanged
___(4) No opinion

7. How has Federal action affected the SALARY
OR HOURLY WAGE PAID ADULT EDUCATION TEACHERS
in your district?

 

___(1) Increased salary or hourly wage

(2) Decreased salary or hourly wage
:::(3) Unchanged salary or hourly wage
___(4) NO opinion

PLEASE GO ON TO THE FOLLOWING PAGE.

10.

11.

12.

232

How has Federal action affected the TOTAL
NUMBER OF ADMINISTRATORS AND SUPERVISORS
employed by your district adult education pro—
gram?

_(1)
_(2)

___(3)
___(4)

How has Federal action influenced FUTURE PLANS
TO EMPLOY ADMINISTRATORS OR SUPERVISORS in
your district adult program?

___(1)
__(2)
__(3)
_(4)

How has Federal action affected EXPENDITURES
OF LOCAL FUNDS FOR ADULT EDUCATION in your
district?

Increased total number Of administrators
and supervisors

Decreased total number of administrators
and supervisors

Unchanged

 

Will employ one or more soon
No plans to employ more
Plans not affected by Federal programs

 

(1) Increased expenditures
(2) Decreased expenditures
(3) Unchanged

(4) No opinion 16.

How has Federal action affected the ADMINISTRA~
TIVE STRUCTURE OF THE ADULT EDUCATION PROGRAM
in your district?

___(1) Changed considerably
____(2) Changed little
___(3) Unchanged

____(4) No opinion

How has Federal action affected the ORGANIZATION
STRUCTURE OF THE ADULT EDUCATION PROGRAM in
your district?

 

17.
(1) Changed considerably
(2) Changed little
(3) Unchanged
___(4) NO Opinion
* * * * * * * *

.5; 1:13:

No opinion 14.

NO Opinion 15.

How has Federal action affected your district's
CONTACTS WITH COOPERATING AGENCIES, i.e.,
Michigan Social Welfare Agency, Michigan
Employment Security Commission, etc?

___(1) Increased contacts
-___(2) Decreased contacts
____(3) Unchanged

___(4) No Opinion

How has Federal action affected the NATURE
OF CLERICAL AND RECORD KEEPING TASKS in your
district for adult education?

___(1) Increased work load
____(2) Decreased work load
____(3) Unchanged
___(4) NO Opinion

How has Federal action affected your district
adult program's ability to meet your
COMMUNITY'S ADULT EDUCATIONAL NEEDS?

___(1) Being met more completely
____(2) Being met less completely
.___(3) Unchanged
___(4) No Opinion
How has Federal action affected your DISTRICT
ADULT PROGRAM?

 

___(1) Program initiated because Federal
funds available

___(2) Program remained in Operation because
of Federal funds

___fi3) Previously in operation and increased
fulfillment of community needs because
of Federal funds

___f4) No Opinion

30‘ * * 2k * *

General Comments:

 

 

 

* * * * * * * *

IF YOU WISH A SUMMARY OF THE RESULTS DERIVED FROM THIS STUDY
SENT TO YOU (FREE OF CHARGE) CHECK "YES" BELOW.

YES NO

Dr.

Floyd Parker

45 Kellogg Center
Michigan State University
East Lansing, Michigan

48823

(Staple and mail)

APPENDIX C

MICHIGAN-~COUNTIES, GEOGRAPHIC AREAS
OF POPULATION DENSITY

        
  

 
    
  
   

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b‘“ ' - Showman: ‘_____,
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Wiamfifififififl3gfiiiiimm
. TIMI/£7651 i 1 .
1 __. ' _____ ' ..... pl___1 _____
AN/s'rf't‘lfixrafiijwsswxifiimscplm . oat/um | 10500

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HURON

LEGEND

  
 

 

AREA I (Densely populated) uusxt— uowrum manor—1322”” l 11
Aver. denSity = 1914.68 aw _fl 1 | L ‘—'
persons per sq. mile.* . HWY ‘-_“.i _____ 1—u—--Ea“§;rtflwwsfam7

AREA II (Median area of density) '55“! \wm‘ iammeMMTE| | "
Aver. density = 151.66 1 . i. ' j .0MLMD mam:
Persons per sq. mile . . 'A—z—[f—éljiv—i-ERRT-I—EATON-TIN5HH‘T1L/7~Gs70;‘ . |

AREA III (Sparcely populated 1 1 . '
area) Aver. density = L_ _Lfl__|“_"_1 _____ _.7:

21. 84 persons per sq. wkfikfilfihmjfl—éuflow .r—JACKSON ‘WASHrt/vw mam
mile. -, 1 #1
,F—(EIS—S. 4§T755~ffi IBEAIC—H—‘r/‘I/iEDAI-jj IENAWE—E- - T lAIONROE
HEM/m | I I.

1 i I J

 

*

Averages of population were based on the U.S. Bureau
of the Census, U.S. Census of the Population: 1960, Number of
Inhabitants, Michigan, Final Report PC (1)—24A (U.S. Government
Printing Office: Washington, D.C., 1961), p. 24—14.

233

 

 

SCHOOL
Cities
Adrian

Albion

Allen Park
Alma

Alpena

Ann Arbor
Auburn Heights
Bad Axe
Baldwin
Baraga

Battle Creek

Bay City

Belding
Bellaire
Belleville
Bellevue
Benton Harbor
Benzonia

Berkley

APPENDIX D

DISTRICTS SURVEYED

School Districts

Adrian City Schools
Madison School District

Albion Public Schools

Allen Park Public Schools
Alma Public Schools

Alpena Public Schools

Ann Arbor Public Schools
Avondale School District
Bad Axe Public Schools
Baldwin Public Schools
Baraga Township Schools
Battle Creek Public Schools
Harper Creek Public Schools
Lakeview School District

Springfield School

Bay City School District
Bangor Township School District

Belding Area Schools

Bellaire Public Schools

Van Buren Public Schools

Bellevue Community Schools

Benton Harbor City School District
Benzie County Central Schools

Berkley City School District

234

 

 

 

Cities
Birmingham
Bridgeport
Cadillac
Caseville
Cass0polis
Centerline
Centerville
Cheboygan
Clare

Clio
Coleman
Corunna
Covert
Crosswell
Dearborn
Deckerville
Delton
Detroit
Dexter
Durand
East Detroit
Ecorse

Erie
Escanaba

Essexville

235

School Districts

 

Birmingham Public Schools
Bridgeport Community Schools
Cadillac Public Schools
Caseville Public Schools

Cassopolis Public Schools

 

Centerline Public Schools
Centerville Public Schools
Cheboygan Area Schools

Clare Public Schools

 

Clio Area Schools

Coleman Community Schools

Corunna Public Schools

Covert Public Schools
Crosswell-Lexington Community Schools
Dearborn City School District
Deckerville Community Schools
Delton-Kellogg School District
Detroit Public Schools

Dexter Community Schools

Durand Area Schools

East Detroit City School District
Ecorse Public Schools

Mason Consolidated Schools
Escanaba Area Schools

Essexville-Hampton Public Schools

 

 

Cities
Fairview

Farmington

Fennville
Fenton
Ferndale
Flatrock
Flint
Beecher
Carman
Fowlerville
Fremont
Galien
Garden City
Gaylord
Gladwin
Gran Blanc
Grand Haven
Grand Rapids
Greenville
Gwinn
Hamtramck

Hancock

Harper Woods

Harris

236

School Districts
Fairview High School

Farmington Public Schools
Clarenceville School District

Fennville Public Schools
Fenton Area Public Schools
Ferndale City School District
Brownstown No. 1 Fractional
Flint Public Schools

Beecher School System

Carman School District
Fowlerville Community Schools
Fremont Public Schools

Galien Township Schools
Garden City School District
Gaylord Community Schools
Gladwin Community Schools
Gran Blanc Community Schools
Grand Haven Public Schools
Grand Rapids Public Schools
Greenville Public Schools
Forsyth School District
Hamtramck Public Schools

Copper Country Intermediate School
District

Harper Woods City School District

Bark River-Harris School

 

Cities
Hartford
Hartland
Hesperia
Highland Park
Hillsdale
Holland
Hanover
Hudson
Inkster
Ionia

Iron River
Ironwood
Jackson
Kalamazoo
Kinde
Kingsford
Laingsburg
Lakewood

Lansing

Lapeer
Lincoln
Lincoln Park
Livonia

Ludington

237

School Districts

 

Hartford Public Schools

Hartland Consolidated Schools
Hesperia Community School

Highland Park City School District
Hillsdale Community Schools

West Ottawa Public Schools
Hanover-Horton Schools

Hudson Area Schools

Inkster Public Schools

 

Ionia City School District
Iron River Public Schools
Ironwood Public Schools
Union School District
Kalamazoo Public Schools
North Huron Schools

Breitung Township Schools
Laingsburg Community Schools
Lakewood Public Schools

Lansing School District
Waverly Schools

Lapeer Public Schools

Alcona Community Schools

Lincoln Park City School District
Livonia Public Schools

Ludington Area School District #1

 

Cities

Madison Heights
Manistee
Manistique
Marine City
Marshall
Marquette
Marcellus
Marshall
Mattawan
Muskegon Heights
Niles
Melvindale
Memphis
Menominee
Midland

Monroe

Montrose

Mount Clemens

Mount Pleasant
Munising
Muskegon
Negaunee
New Haven

Newaygo

238

School Districts

 

Lamphere Public Schools
Manistee City School District
Manistique Public Schools

St. Clair River Area Program
Calhoun Intermediate School District
Marquette City Public Schools
Marcellus Public Schools
Marshall Public Schools
Mattawan Consolidated School
Muskegon Heights Public Schools
Brandywine Public Schools
Northern Allen Park Public School
Memphis Community School
Menominee Area Public Schools
Midland City School District
Monroe Public Schools

Montrose Township Schools

Mount Clemens Community Schools
Clintondale Public Schools
L'Anse Creuse Public Schools
Mount Pleasant Public Schools
Munising Public School District
Muskegon City Public Schools
Negaunee Public Schools

New Haven Community Schools

Newaygo Public Schools

 

Cities
Norway
Niles
Oak Park
Onaway
Onekama
Onsted
Ontonagon
Oscoda
Otsego
Oxford
Owosso
Petoskey
Pewamo
Pickford

Pigeon

Pinconning
Pittsford
Plymouth
Port HOpe

Pontiac

Port Huron
Portland
Plainwell

Reese

239

School Districts

 

Norway—Volcan Area Schools

Niles Public Schools

Oak Park School District

Onaway Area Community Schools
Onekama Consolidated Schools

Onsted Community Schools

Ontonagon Township Schools

Oscoda Area Schools

Otsego Public Schools

Oxford Area Community School District
Owosso Public Schools

Petoskey Public Schools
Pewamo—Westphalia Community Schools
Pickford Public Schools

Elkton-Pigeon—Bay Port Community
Schools

Pinconning Area Schools

Pittsford Rural Agricultural Schools
Plymouth Community Schools

Port Hope Community School

Pontiac City School District
Waterford Township Schools

Port Huron Area Public Schools
Portland Public Schools
Plainwell Community Schools

Reese Public Schools

 

 

Cities

Riverview
Rochester
Rockford
Rockwood
Roseville
Royal Oak

Rudyard

Saginaw
Sanford

St. Claire Shores

St. Ignace
St. Joseph
St. Louis
Saugatuck
Sault Ste. Marie
Sebewaing
Southfield
South Haven
South Redford
Southgate
Sparta
Stambaugh

Stevensville

240

School Districts

 

Riverview Community School District
Rochester Community Schools

Rockford Public Schools

Gibraltar School District

Roseville City School District

Royal Oak City School District
Rudyard Township School District #11
Eastern Upper Peninsula Intermediate

School District

Saginaw City School District

 

Meridian School District

St. Clare Shores City School District
Lakeview Public Schools

St. Ignace City School District
St. Joseph Public Schools

St. Louis Public Schools
Saugatuck Public Schools

Sault Ste.Marie Public Schools
Sebewaing Public Schools
Southfield Public Schools
South Haven Public Schools
South Redford School District
Heintzen Public Schools

Sparta Area Schools

Stambaugh Public Schools

Lakeshore Public Schools

Cities
Sturgis
Taylor
Temperance
Three Rivers
Traverse City
Utica
Vermontville
Vicksburg

Walled Lake
Warren
Watervliet
Wayland
Wayne

White Pine

Ypsilanti

Wyandotte

Zeeland

241

School District
Sturgis Public Schools
Taylor Township School District
Bedford Public Schools
Three Rivers Public Schools
Traverse City Public Schools
Utica Community Schools
Maple Valley Schools
Vicksburg Community Schools

Walled Lake Consolidated School
District

Warren Consolidated Schools
Fitzgerald Public Schools

Van Dyke Public Schools
Watervliet School District #62
Wayland Union Schools

Wayne Community School District

White Pine School District

Ypsilanti Public Schools
Willow Run Public Schools

Wyandotte City School District
Godwin Heights Public Schools

Zeeland Public Schools #46

 

 

 

 

APPENDIX E

ADULT BASIC EDUCATION PROGRAMS 1965-1966

District

 

koooqmmwaI-J
O

FJH
F40

12.
13.
14.
15.
l6.
17.
18.
19.
20.
21.
22.
23.
24.
25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.
37.
38.
39.
40.
41.
42.
43.

Albion Public Schools

Algonac Community Schools
Allegan Intermediate Schools
Alpena Public School District
Ann Arbor Public Schools
Beecher Public Schools--F1int
Benton Harbor Public Schools
Breitung Township Schools--Iron Mt.
Bridgeport Community Schools
Calhoun Intermediate Schools
Clare Intermediate Schools
Clarenceville Schools-—Farmington
Detroit Public Schools

East Detroit Public Schools
Eastern Upper Peninsula Schools
Ferndale Public Schools

Flint Public Schools

Garden City Public Schools
Grand Rapids Public Schools
Highland Park City Schools
Hillsdale Community Schools
Howard Community Schools--Niles
Inkster Public Schools

Ionia Public Schools

Jackson County Schools
Kalamazoo Public Schools
Lansing Public Schools

Madison Public Schools-—Adrian
Madision Heights Public Schools
Manistique Public Schools
Marquette Alger Intermediate S/D
Memphis Community Schools
Menominee Public Schools

Mt. Clemens Public Schools

Mt. Pleasant Public Schools
Muskegon Public Schools
Muskegon Heights Public Schools
Niles Public Schools

Oak Park Public Schools

Oscoda Area Schools

Pontiac City School District
Richmond Public Schools
Rochester Community Schools

242

County

Calhoun
St. Clair
Allegan
Alpena
Washtenaw
Genesee
Berrien
Dickinson
Saginaw
Calhoun
Clare
Oakland
Wayne
Macomb
Chippewa
Oakland
Genesee
Wayne
Kent
Wayne
Hillsdale
Cass
Wayne
Ionia
Jackson
Kalamazoo
Ingham
Lenawee
Oakland
Schoolcraft
Marquette
Macomb
Menominee
Macomb
Isabella
Muskegon
Muskegon
Berrien
Oakland
Iosco
Oakland
Macomb
Oakland

 

243

District

 

44. Roseville High School

45. Saginaw Board of Education

46. Sault Ste. Marie Public Schools

47. Southfield Public Schools

48. Union Schools-—Jackson

49. Waterford Township Schools-—Pontiac
50. Willow Run Public Schools-—Ypsilanti

County

Macomb
Saginaw
Chippewa
Oakland
Jackson
Oakland
Washtenaw

 

 

 

 

 

 

 
       

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