STATEMENT OF DON M. DAFOE, COMMISSIONER OF EDUCATION, TERRITORY OF ALASKA Mr. DAFOE. Don Dafoe, Commissioner of Education for Alaska. Mr. BARTLETT. Will you proceed, Mr. Dafoe? Mr. DAFOE. Mr. Chairman and members of the committee, I have submitted a written statement that gives general information about the Territorial school organization, enrollment, finances, general school support. Mr. BARTLETT. Do you propose to read that report? Mr. DAFOE. I do not propose to read it. I would like to see it entered as part of the record. Mr. BARTLETT. Without objection, the statement submitted by Mr. Dafoe will be included as part of his remarks. (The statement referred to follows:) STATEMENT BY DON M. DAFOE, COMMISSIONER OF EDUCATION, TERRITORY OF ALASKA SECTION A: GENERAL INFORMATION CONCERNING ALASKA As a preliminary to any discussion of school operations in the Territory of Alaska, I would like to present some facts concerning the Territory and the Territorial school organization so that the committee may have background information for a better understanding of our problems. In the first place, we must mention the size of the Territory itself, which is approximately one-fifth of that of the continental United States. If the Alaskan school map were superimposed on a map of the United States, Alaska school locations would extend from South Carolina to California and from Texas to North Dakota. Transportation routes consist of water transportation along approximately 26,000 miles of shoreline, and includes 400 miles of railroad and the Alaska highway system, which now connects Seward, Kenai, Homer, Anchorage, Valdez, Fairbanks, and Haines with a land route to the States. Some river transportation is available within Alaska and there are a few minor roads in addition to the Alaska Highway. Alaska's most southern major city, Ketchikan, is about 750 miles distant from Seattle, the major port serving the Territory. School locations to be served in the Territory extend from Ketchikan at the 132d meridian, as far west as the 176th meridian at Adak in the Aleutian Islands, and from below the 56th parallel to above the 66th. Much of this area is isolated from direct service by land or water transportation and must be served by air. Southeastern and coastal Alaska has an extremely heavy annual precipitation, in some places in excess of 200 inches. In the interior of Alaska the weather is relatively dry, but the ground is often frozen from October to June so that building seasons are short. Temperatures in Fairbanks will range from a low of 60° below zero to as high as 95° above zero in the summer. Along the coastal areas the terrain is rocky, mountainous, heavily timbered, and has extensive muskeg areas. The central and northern sections of the Territory also include much mountainous terrain and huge areas of muskeg. Permafrost conditions often prevail in the central and northern sections. This information is offered to indicate not only the extensive size of the Territory, but also the wide variations in terrain and climatic conditions which must be met in operating, serving, and constructing schools. The climate and terrain along with the short building season and shipping problems all tend to complicate construction and to make building costs excessive. Building costs in the Territory will range from 11⁄2 to 21⁄2 times average stateside costs and are currently averaging about $25 per square foot. SECTION B: TERRITORI AL SCHOOL ORGANIZATION Details of the Territorial school organization are presented here in summary form only in order to give a picture for purposes of clarification. The Alaska law provides for a Territorial system of education which is administered by the Territorial board of education, the Territorial commissioner of education, and the local school boards. The Territorial laws provide for incorporated school districts of three types: (1) City school districts, which are automatically formed at the time of incorporation of a city and whose boundaries coincide with the city boundaries. (2) Independent school districts, which are formed by petition and election, which include one or more cities, and which may not exceed 500 square miles in area. (3) Incorporated school districts, which may be formed in any area in the Territory by petition and election if there are at least 100 residents and at least 30 children of school age in an area not in excess of 500 square miles. There are currently 22 city school districts, 8 independent school districts, and 1 incorporated school district. It should be noted here that the Organic Act under which the Territory functions does not provide for counties or any other type of intermediate taxing unit except those that may be formed under the laws governing incorporation in the Territory. In addition to school districts, provision is made for municipal corporations and public utility districts. Therefore, it can be readily seen that the great majority of the Territory does not come within any political subdivision or taxing unit except the Territory itself. Therefore, the Office of the Alaska Commissioner of Education, besides carrying on the usual functions of a State department of education will respect to overall supervision of the organized school districts, is further charged with the full responsibility of administering all schools in the Territory which are not in incorporated districts. Therefore, in effect, the commissioner of education is the chief administrative officer of what might be called the Alaska Rural School System, which embodies the total area of the Territory outside the incorporated districts. From funds appropriated by the Territorial legislature and from other revenues available to it, the office of the commissioner of education provides financial support to incorporated school districts on the basis of a refund system to the extent of 75 to 85 percent of the refundable items of their budgets, the percentage depending upon the size of the school. Not all budget items are refundable, but in actual practice, the Territory is supporting school districts to the extent of an average of 60 percent of their total current school expendi tures for maintenance and operation. From these same fund sources the department of education pays all costs of operation, maintenance and capital outlay for the rural school system. Transportation of school pupils in the Territory is paid for 100 percent by Territorial appropriation and complete responsibility for school bus transportation is vested in the department of education. However, recently adopted regulations allow the department of education to delegate authority for the actual administration of transportation to local school districts. There are now 73 Territorial rural schools operated directly by the commis sioner of education ranging in size from 1-room schools with enrollments as low as 8, to schools which include grades K to 12 and enroll as many as 300 pupils. In addition to the Territorial rural schools, the commissioner of education also directly operates the schools on 8 military bases as a part of the rural school system with funds supplied by the United States Office of Education under Public Law 874, 81st Congress, as amended, and is currently operating twenty-two 1- and 2-room rural schools which were formerly operated by the Alaska Native Service, Bureau of Indian Affairs. These 22 schools are financed under provisions of the Johnson-O'Malley Act. The responsibility for providing school facilities on the military bases lies with the United States Office of Education and present buildings were built with funds available under Public Law 815. 81st Congress, as amended. As yet, responsibility for buildings for the 22 Johnson-O'Malley schools lies with the Alaska Native Service, Bureau of Indian Affairs. In addition to the incorporated school districts and the Territorial rural-school system, which includes Alaska onbase and Johnson-O'Malley schools, the Alaska Native Service, Bureau of Indian Affairs, is currently operating over 80 day schools throughout Alaska, and 2 boarding schools, 1 at Wrangell and 1 at Mount Edgecumbe. It is expected that the Department of Interior, through the Bureau of Indian Affairs, will present a proposal and plan for permanent transfer of these schools to the Territorial department of education within the near future. Such a plan will undoubtedly provide for transfer over a period of years, will provide for Federal financial support of some type, and will undoubtedly make some provision for the capital outlay expenditures required in these locations. There are also 20 private and denominational schools operated throughout the Territory by various church groups. These range in size from one-room schools to schools which include a full 4-year high school. SECTION C: POPULATION INCREASES AND ENROLLMENT INCREASES Overall Territorial population increased from an estimated 72,524 permanent population in 1940 to about 129,000 according to the 1950 United States census. This is an increase of nearly 80 percent. Since 1950 it is estimated that the population has increased another 39 percent to a present estimate of 180,000 exclusive of military personnel. School population in Alaska, just as elsewhere in the Nation, has shown a much greater increase than overall populations, primarily because of the increased birth rates, but also because of the fact that many young people with young families are moving to the Territory. The enrollment in incorporated school districts has increased over 150 percent since the 1941-42 school year. Some incorporated districts have shown phenomenal increases in this same period. For example, note the percentage increase in the following school districts: In the past 5 years total enrollments in incorporated districts have increased over 100 percent. Enrollment increases in the Territorial rural school system, not including Alaska onbase schools or Johnson-O'Malley schools, have not been as phenomenal as in the incorporated districts, but have been steady and have amounted to an increase of over 125 percent in the last 5 years. During this same period the number of schools operated has increased by 50 percent. There are some rural schools, such as Kenai and Homer, which have shown enrollment increases as high as 300 percent. The overall school enrollment has more than doubled in the past 5 years and has increased nearly 33 percent in the past 2 years. The estimated current enrollment for the 1955-56 school year, exclusive of Johnson-O'Malley and private and denominational schools, is 26,700. Alaska is a frontier country and its growth potential is tremendous. It is strategically important from a military standpoint and over its vast area geologists and economic observers have indicated a vast potential of oil, minerals, and forest products, the development of which is merely awaiting further exploration and capital investment. It is apparent that this Territory is just on the threshold of its development. Therefore, we may expect not only the steady increases in permanent population and the resultant normal increases in school population, but must also be prepared for the added influx which will be caused by further economic development. Alaska has some outstanding new and modern school plants. However, there is still a need for at least 316 additional classrooms by September 1960, to meet increased enrollments and replace substandard classrooms. The local school districts are already heavily obligated for debt redemption for classrooms built thus far, although the Territorial tobacco tax for school construction purposes is carrying a large portion of the amortization burden. There is a need for con tinued Federal building assistance through Alaska public works and Public Law 815 as well as from possible new Federal school construction legislation. We believe that the Alaska schools are basically good schools. We are proud of our high academic standards and the general excellence of our instructional program. However, we realize that we are not fully meeting the needs of all our youth particularly on the high school level and in remote areas. We realize that we need more vocational and prevocational programs in our high schools. These programs are developing slowly as physical facilities become available. We receive Federal allocations under the George-Barden Act to assist with vocational education. Segregation constitutes no problem in Alaska. Although the Alaska Native Service operates approximately 80 day schools and 2 boarding schools throughout the Territory serving nearly 5,000 students, the reasons for this are based on geographic, economic, cultural, and financial aspects rather than on race or color. In fact, there are more native children of one-fourth or more native blood attending Territorial schools than there are attending Native Service schools. Of a total cumulative enrollment of 32,186 in the Territorial schools for the 1954-55 school year, 6,509 were natives. Many of our Territorial rural schools have over 90 percent native enrollment. Work has been done on a plan for permanent transfer of native service schools to Territorial jurisdiction. General agreement has been reached on many points, but the important matter of the basis, amount, and length of continuance of Federal financial support has not been agreed upon. There is a strong feeling in the Territory that as long as over 99 percent of the land is Federal and we remain in Territorial status, the Federal Government has an obligation to finance the education of Alaska natives on a 100-percent basis. Regardless of future developments, Alaska should be entitled to the same type and amount of Federal aid for native enrollments as is available to any State. Other agencies have called the attention of the committee to the need for land surveys. In this same connection we must recognize that the income from school lands (secs. 16 and 36) in the Territory is low because (a) There are comparatively few school sections set aside because of the small amount of surveyed land. (b) Present laws do not permit the sale of school lands. (c) Present laws allow only 10-year leases. We recommend that a law be enacted providing at least 55-year leases and providing that the Territory of Alaska and school districts be given first priority in leasing portions of school sections for the purposes of erecting school buildings. Attached to this report are two mimeographed sheets of statistical information relating to the 1955-56 school year which may be of interest to the committee. The committee counsel have also been furnished with the latest biennial report of the Commissioner of Education. The people of Alaska have consistently given splendid support to their schools. A report by George Rogers, Territorial economist, prepared in October 1954, shows that Alaska spends about 43 percent of its Territorial income for education, as compared to an average of 29.4 percent in the various States. We have every reason to believe that the people will continue to support their schools to the limit of their financial abilities. However, the needs for additional classrooms, expanded educational programs, special education services for handicapped and exceptional children, added to the needs for expanded services in health, welfare, and other government functions are pushing the total financial needs to a point where additional revenue sources for current operation and added Federal support for school construction appear to be necessary. udget statistics for incorporated school districts for the 1955 56 school year Districts budget additionally to meet capital outlay and debt service requirements 25, NON 50 91,626 48 34.57% 58 4, 550 50 730, 599 49 69 868 25 35, 260 50 26,494 30 388 383 74 25,000 00 345,494 00 11, 834 85 19,301 NO 172.591 88 31.072 25 127,096 00 16, 133 85 220,125.00 11. 416 30 108 247 ON 28,797 10 199 032 00 15K 975-20 48,151-60 11.577 00 72. 196 75 89 149 20 18,651 50 $4,634 949 44 4,257, 601 50 8 10 These amounts t included here. Also, transportation costs which are 100 percent reimbursable by the Territory, .. vocational and education for handicapped expenditures are not included ased on estimates. Budget not yet completed. rritorial portion of the budget for current operations is 60 56 percent. tual ADM. TERRITORY OF ALASKA, DEPARTMENT OF EDUCATION Schools operated directly by the Department of Education tire cost of operating these schools is borne by the Federal Government under Public Law 874. ese are schools formerly operated by the Alaska Native Service and transferred to the Territory. ntire cost of operation is borne by the Federal Government under a Johnson-O'Malley Act contract. 71196-56-pt. 4-20 |