institutions. The regents are authorized by law to supervise and visit the word is "visit"-the private institutions.

In actual operation, of course, the private institutions are independent, they operate on their own. The regents simply constitute what Learned Hand once called the overarching superindependence of education in the State. It is a unique concept in the Nation. I believe, a very old one, and one which I am very proud of, in these days in particular, when I think we have to build all of education together, build the universities and colleges on the strength of the elementary and secondary schools and vice versa.

Under this system, it is possible for us in New York today to pull together the entire education structure in planning.

Senator YARBOROUGH. It is a very interesting system.

Thank you.

Dr. ALLEN. I am impressed in this connection to note that the U.S. Commissioner of Education, Mr. Francis Keppel has said-

The policy of the Federal Government, in planning its part in the effort we must make as a nation, must be such that, at the end of any program the institutions are stronger and freer than they were at the start.

PROGRESS IN NEW YORK

New York State has made significant progress in education in recent year. You may be interested in a few facts:

Expenditure for the public schools have increased from $1.3 billion in 1957-58 to an estimated $2.2 billion in 1962-63, an increase of nearly 70 percent. For the same period, State aid for the public schools increased from $514 to $960 million, an increase of nearly 88 percent. State aid for education is expected to reach $1 billion in the next school year.

In higher education, we have embarked on a billion-dollar construction program to provide for doubling of enrollment in our State university units by 1970. We lead the Nation, I believe, in the field of financial assistance for college students, with nearly 100,000 students receiving scholarships or scholar-incentive grants and over 40,000 students utilizing the liberal loan policies of the New York State Higher Education Assistance Corp.

This program of aid to needy students not only helps to achieve a higher level of education, but helps to provide a wide diversity of choice to students.

With respect to quality we can boast of leadership on several points. In the Westinghouse science talent search, a nationwide competitive scholarship program, New York State pupils won 35 percent of the scholarship winner awards and 32 percent of the honorable mention awards in 1962, while New York State has only 10 percent of the secondary pupils in the Nation.

In the national merit scholarship program, another national program, awards are allocated among States in proportion to a population measure.

In this test the index of quality in a State program is not the number of scholarships won, but the qualifying score a pupil must attain to win a scholarship in his State. In 1960 only two States had qualifying scores higher than New York. If the qualifying score had been the

same in New York State as in the average State, the number of New York State winners would have more than doubled.

The number of students in our high school studying the more advanced courses in mathematics increased by more than 70 percent from 1945 to 1960. In science a similar increase has taken place. These gains are nearly three times the increase in total high school enrollment.

In the associated placement program, a nationwide program that provides bright high school students with opportunities to take college level courses during the upper years of their high scohol work, 20 percent of all high schools offering such courses and 25 percent of ali pupils in the Nation taking such courses are in New York State.

I could go on with instances of achievement of which we in New York State can be proud. But I am not here for that purpose. I cite these facts simply to show the scope of education in New York State, the great investment in education that has been made by the citizens, and to emphasize how much is at stake, and how much of the future welfare and hopes of the people rests upon the development and progress of our education system.

UNMET NEEDS IN NEW YORK

Our pride of accomplishment is exceeded only by our feeling of concern for the vast array of unmet educational needs in our State. Let me turn now to a brief enumeration of some of the more serious of these needs.

Enrollments in our public schools are continuing to rise at the rate of more than 60,000 pupils per year, creating a continuing shortage of teachers and classroms which we have thus far not been able to overcome. Last year 72,000 boys and girls were forced to attend curtailed daily sessions. Thousands are in classes too large for proper individual attention; far too many are in schools badly needing renovation and repair.

Despite local, State, and National programs for up-dating teachers in service, these programs are too meager to make the impact so urgently needed. I know of nothing more urgent in education today than the need to provide for teachers in service the opportunities for raising the quality of their preparation made necessary by the demands of the changing times.

Teaching materials are rapidly being improved but the pace is painfully slow. Up-to-date, first-rate teaching and learnings materials in all areas of the curriculum are essential if learning opportu nities are to be equal to the needs and abilities of the students. Large sums of money are required not only to produce such materials but to place them at the disposal of teachers and students.

The educational problems in our cities are especially critical. A recent report of a study of New York City schools by State and National educational specialists credited the city's schools with many fine achievements, but pointed to the "staggering problems" they face. and to their struggle against incredible odds to provide education of high caliber. One competent observer has called the educational problems of New York City "so tremendous that they almost defy description"; another has referred to them as "social dynamite." The

president of the board of education in an address before the board of estimate and the city council in New York on May 2, 1963, stated that the funds allocated by the city for education were not sufficient to make even a "modest dent" in the accumulated school problems of the city. The funds necessary for making a massive dent in the city's school problems must be forthcoming-and soon.

The educational problems of our large cities, such as New York City, are no longer solely the responsibility of local government, nor of State and local governments.

They are a national responsibility created in part by national conditions. The results of neglect of education in these cities reach far beyond local or State boundaries, and their problems must receive the increased attention of the Federal Government as well as that of State and local governments.

Of special concern to New York State, and to the Nation, is the problem of unemployed youth. Our statistics show that unless something is done to change present trends we shall have by 1970 in New York State an estimated 786,000 more young non-high school graduates than the number of jobs available for them.

This is truly social dynamite.

SHORTAGE OF EDUCATED MANPOWER

At the same time we shall have an estimated shortage of 243,000 in the numbers of college-educated persons for the jobs requiring that level of education.

To help solve these serious problems of imbalance between education and jobs, the schools will have to upgrade instruction all along the line and provide the kind and quality of programs that will keep more students in school through at least high school graduation. In New York State our successful school to employment program-that is a program for 15-year-old's in the school-is making a significant contribution in this direction. But the funds presently available for it are woefully inadequate.

There is a serious need for modernizing and expanding opportunities in vocational education, particularly for industrial-technical training at the secondary school level. Efforts to secure the funds recessary to implement our State plan for vocational education have thus far failed.

VOCATIONAL EDUCATION IN NEW YORK

New York State ranks 12th among the States in percent of population 25 years and older having completed at least 4 years of college. The median school years completed by this age group in New York State is only 10.7. On this score we rank 28th. It is reported that the Tumber of adults in this State with less than 5 years of school is nearly 0.000. A massive effort is needed to raise the education level of these members of our society.

While New York State citizens have made, as I have pointed out, a relatively strong effort to support their schools, that effort will have to be substantially increased in the years immediately ahead. EstiBates indicate that expenditures for public schools will continue to increase by approximately 10 percent annually over the next few years. The State and the localities have done much in the past to provide

the needed revenues. They can and will do more in the future. I am convinced, however, that the size of the task in education in New York State, and in the Nation, demands that the role of the Federal Government be substantially enlarged.

Federal financial assistance for vocational education and for the support of the National Defense Education Act have been of great value to New York State. Their continuance and expansion as proposed in S. 580 would be of even greater value in the solution of our educational problems.

There is much in S. 580 that appeals to me. I like the fact that it is comprehensive and interrelated-that it recognizes that indivisibility of education, the interdependence of all levels and programs from the kindergarten to the graduate school level. I hope that it will be treated as a whole by the Congress and that some progress will be made with respect to all of its parts.

Before commenting briefly on titles III and IV of S. 580, Mr. Chairman, I would like to refer to a statement of principle which guides my views in general with respect to programs and proposals for Federal aid to education.

As a matter of principle, I strongly favor the policy of leaving as much discretion as possible to the States for determining where the needs are within the State and how best to use the Federal funds for meeting these needs. In short, I favor the noncategorical approach to Federal aid for education, as set forth here by Mr. Ford. My position on this with respect to aid for elementary and secondary education is set forth in a statement of policy adopted last year by the New York State Board of Regents. A copy of that statement is attached.

IDENTIFICATION OF CRITICAL NEEDS

At the same time, I believe we must identify the most critical of our educational needs and make special efforts to meet them. Until such time as we have developed more experience and sophistication. in dealing with the financial roles and relationships of our three levels of government, the categorical approach may be the proper one for the Federal Government.

It is my hope, however, that the trend will be toward strengthening State and local leadership and control, and leaving to the States the widest possible degree of discretion in the use of all funds available to them for education.

Now for a few words about titles III and IV of S. 580. I strongly support that title.

The quality of education is determined primarily by the quality of the teacher. Title III of the bill is addressed to this very subject. Title III of NDEA has helped to strengthen instruction in science, mathematics, and modern foreign language. For instance, with the help of NDEA funds, foreign language teachers in New York State participated in 120 conferences and workshops in 1950-60 with the aim of improving foreign language instruction. Four universities in New York State were designated as language and area centers. They offered 26 languages in 1960. In addition, 97 teachers attended summer language institutes under title VI of NDEA.

INSTITUTE EXPANSION AND RESEARCH

In the area of guidance, 213 New York State guidance counselors or teachers attended institutes at 7 colleges or universities for 6- to 8-week sessions in the summer of 1960. NDEA funds were of significance in increasing the number of guidance counselors in New York State from 1,400 in 1958 to 1,775 in 1960.

Title III of the new bill would expand the teacher institute program (now limited to teachers of foreign languages and guidance and counseling personnel) to include teachers of English, humanities, social sciences, and library personnel. New York State is presently Laking efforts to stimulate and produce substantial improvement in the quality of instruction in these area. Federal support would be of great consequence in furthering our efforts.

I would like, in particular, to lend strong endorsement in part D of title III, authorizing the support of educational research and demonstration centers involving colleges and universities and State and local education agencies. We have never had enough money for research.

Also important is part E which extends for 2 years the grants to State education agencies to finance the collection and analysis of statistics about the character, quality, and quantity of educational programs in the States. This is a matter vital to better understanding of education's needs and progress.

Educational statistics, by and large, have been notoriously weak and poor. I think we have made a great deal of progress in strengthening them under the NDEA proposal and what the States have been doing. More is needed here.

Title IV of S. 580 would provide a Federal program for support in such areas as teacher salary improvement, classroom construction, and special projects for improving educational quality particularly in disadvantaged rural and urban areas.

As I have already indicated, this would be of much help to New York State and other States.

I am pleased that the bill appears to leave room for the States with their varying needs to vary in the percentage of funds allocated to each purpose.

I could go into greater detail in giving support to S. 580 but I think I have made sufficiently clear my reasons for believing it to be good and necessary legislation.

I have been speaking primarily from my position as commissioner of education in New York State, but as an educator and as a citizen of the United States, my interest in education cannot be confined to the limits of State boundaries.

STATE-FEDERAL PARTNERSHIP IN EDUCATION

While State responsibility for education is firmly embedded in American tradition and legal structure, practical matters of operation and need have evolved a three-way partnership-local-State-Federal-for the carrying out of this responsibility for education.

Experience has shown that each of these levels has special resources and opportunities and that the most effective operation of education