requires that each be assigned those areas of responsibility and those functions for which each is best suited.

This sharing of powers among the three levels of government has served us well in education and provides, I believe, the best framework for education in a country so vast in dimension and so diverse in needs. In considering the role of the Federal Government in education, or in any other endeavor, it must never be forgotten that the Federal Government is not remote nor impersonal—it is merely the people of the United States operating in a broader sphere of action.

Therefore, it is the duty of the representatives of the people at that level to make certain that they provide the framework and the support necessary for the most effective and most productive exercise of the share of responsibility for education which falls to the Federal Government.

With the responsibility for education distributed over the whole sweep of local-State-Federal organization, there exists the broad scope of action and the variety of approach suitable to education in a country soon to have a population of 200 million. With the proper balance of strengths achieved among the three, there can be the vitality, strength, and responsiveness which give to education the adaptability requisite for eras of unprecedented change.

Carved in the stone of the State Education Building in Albany are these words of Gov. DeWitt Clinton:

The first duty of government, and the surest evidence of good government, is the encouragement of education.

This applies to all government-local, State, or National-and edu cation can be strong only if there is evidence in full measure at each level of this exercise of good government.

Thank you, Mr. Chairman.

Senator RANDOLPH (presiding). Dr. Allen, we are appreciative of your testimony, as we are of the testimony of Dr. Fuller and Dr. Ford. I shall not discuss the statement at too great length, but I would comment on the fact that you have indicated that in the State of New York, in the five categories of education, the publicly supported schools, the privately operated schools, and then the colleges and universities, that there is a total enrollment at the present time of 4,230,000 persons. This is to me a rather startling fact, that in one State, which is, of course, a very populous State, there is this number of persons who are now in the process of education.

You view the problem as one of imperative need to provide on many fronts additional aids.

FEDERAL CONTROL UNDER S. 580

I also wish to ask you, Dr. Allen, to expand, if you will, just a little further, on the fact that, as you have indicated in your statement, the Federal Government is not remote nor impersonal, it is merely the people of the United States operating in a broader sphere of action. Now, we will hear, as we have heard, the criticism that a program of Federal aid to education, such as is envisaged in S. 508, is an encroach ment on the power, to use that word, of the Federal Government as against the State and local levels of government.

Would you comment just a little more on this subject?

Dr. ALLEN. Thank you, Mr. Chairman, I will.

I believe the control and the operation of education should remain with the States. But the State cannot be an island. New York State certainly is no island in this Nation. Its success in education depends upon the strength and success of much of the country. How well we do in New York influences the strength of our society nationwide, in my judgment. The city of New York, as I have indicated here, is not a local community, where lines are confined just to that part of the country; it is a great metropolis which serves the whole United States. So that it seems to me that we as a nation are so interdependent between our States and our localities that we must bring forth the entire resources of our Nation to support so important a function as education. I do not believe that it is bad because the Federal Government takes an interest in education, because the Federal Government helps to support needs in education, because the Federal Government identifies those needs that are most urgent in the interest of our national welfare.

I think this is important and good; I believe the States should help to support the interest of the Federal Government. I think the Federal Government must help support the interest of the States. So that I do not think that you can think of the Federal Government as a far-off partner, but as one very close to all of education.

Senator RANDOLPH. Dr. Allen, you perhaps agree with me that the very fact of our change in system of living, with the communication and transportation media so different today from yesterday, the lines are obliterated, are they not, in fact, physically?

Dr. ALLEN. Very much so.

Senator RANDOLPH. I wish also to make a comment with reference to your stressing the need for more adequate teaching. At DavisElkins College on May 2, when I was privileged to dedicate the Benedum Hall, in that address I was covering some of these problems which you have so well set forth, and the reasons why they must be approached in a dynamic fashion. I said, "To cite the illustration for reed of more intensified effort in education, I spoke earlier of the doubling time of scientific knowledge and the impact this has on the restructure of our school curricula at every level." But consider in addition to this the problem posed by the fact that in the fall of 1962, the States reported that 83,000 elementary and secondary school teachers failed to meet full State certification requirements. Thus, more than 1 teacher in 20 fails to meet the certification standards of his or her own State. And additional thousands of teachers do not have the opportunity to refresh and update their knowledge of the subject matter they teach.

Dr. ALLEN. I am particularly interested in this part, because I think the one thing that probably keeps me awake more at night than any other is the knowledge that the 120,000 or 125,000 teachers in the State of New York, at least great numbers of them, simply are not up to date in their preparation for teaching the kind of education that the times require. And the attention that this bill gives to that fact, the effort that has been made through the NDEA, are very important. But it is still very meager. Nationally, I think, in the State of New York as well, very meager in terms of the tremendous demand to bring these teachers up to date.

EDUCATION FIRST DUTY OF GOVERNMENT

Senator RANDOLPH. Dr. Allen, in conclusion, I think that it was an excellent quotation that you have used of Governor DeWitt Clinton:

The first duty of government and the surest evidence of good government, is the encouragement of education.

in

I think today that the evidence you speak of here, the evidence underlies, or I should say underlines the critical importance of mobi lizing all of our resources; private, public, local, State, Federal, the broad-gage effort to strengthen the educational system of the United States at every level and in every facet.

And wherever one turns, one finds the wisdom in remarks of Epic tetus, the Stoic philosopher, who declared that the State says only the free shall be educated; God states that only the educated should be free.

Thank you very much for your very helpful assistance as a member of the panel, to you, Dr. Ford, and to you, Dr. Fuller.

This has been a most remunerative way you have presented the ma terial. We assure you that the subcommittee and the full committee that the voluminous file you have left us shall not go uninvestigated

Dr. FULLER. May I say, Mr. Chairman, that with only 55 member in the council, the 50 State officers and 5 from the outlying territorie such as Puerto Rico and Guam, we make every effort as a group to represent the entire group adequately and fairly in all of the hearing and in all of the polls that we take and presentations that we make When we say that something is the policy of the council, that means that it has been carefully ascertained that it is the view of the major ity. We usually try to say what the majority is, whether it is a larg majority or a small majority. I regret particularly that the new State Superintendent of Public Instruction of California, Dr. Ma Rafferty, was not able to be here today. We hoped that he woul join us. He certainly would have given us more variety than we hav had with just the three of us.

We try to do an objective, conscientious job. We think that all of education is connected, as we agree with all the purposes that hav been stated, I am sure, as council policy. But we do not believ necessarily that all of these purposes, public and private and highe education and elementary and secondary, are implemented the sam way. We do not believe that Federal funds are appropriate for som parts under our constitutions and laws, under our policies in education and under the public policies that exist in this country. We do no do the same thing for everybody in the same way, and yet, we can al agree that all education should be strengthened.

Senator RANDOLPH. I like your comment about the variety. W have had a demonstration of that in another level of our living, with the Americans reaching the peak of Mount Everest. The two team reached the peak, but they used different approaches. Yet they stoo there on Mount Everest.

Now, I think that we have heard from Max Rafferty. We hav had a communication from him. His thinking will supplement wha you have said today.

Thank you, again, very much.

(The prepared statement of James E. Allen, Jr., together with attachment, is as follows:)

PREPARED STATEment of JamES E. ALLEN, JR., COMMISSIONER OF EDUCATION, AND PRESIDENT OF THE UNIVERSITY OF NEW YORK

Mr. Chairman and members of the subcommittee, my name is James E. Allen, Jr. I am commissioner of education and president of the University of the State of New York. I appreciate this opportunity to appear before you and to express my views with respect to S. 580.

The University of the State of New York is the oldest continuous State educacational agency in America and consists of all of the elementary and secondary schools, colleges and universities of the State-public and private. It includes also the museums, libraries, historical societies, and other educational and cultural institutions chartered by the State. The head of this university is the constitutionally created body, the regents of the University of the State of New York, of which I am the executive officer.

This year there are nearly 3 million students enrolled in the public schools of New York State, and approximately 750,000 in the nonpublicly controlled schools. The 200 colleges and universities in the State presently enroll approximately 480,000 students.

New York State has long been a leader in education. The people believe in and want good education. Governors of both major parties have usually been advocates and strong supporters of education. The legislature too has seldom failed to give top priority to the welfare of our schools and colleges.

In my opinion, New York State is particularly fortunate in the soundness of its legal and administrative structure for education wherein all of education in the State from the kindergarten to the graduate schools is under the general supervision and control of the State board of regents. This system facilitates sound planning and coordination, provides protection against partisan political control, and makes it possible to maintain a unity of educational purpose in the State while at the same time fostering a wide diversity of opportunity and of institutional growth and development.

I make special mention of this unique structure for the government of education in New York State because I earnestly believe it is one of our greatest assets and I am concerned to see that the development and administration of Federal policies result in strengthening, not weakening, this structure. Hence, I am pleased when I read the repeated statements of the U.S. Commissioner of Education, Francis Keppel, that-"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."

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

Expenditures 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 lion, 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 a 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 scholarship or scholar incentive grants and over 40,000 students utilizing the liberal loan policies of the New York State Higher Education Assistance Corp.

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 schools 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 advanced placement program, a nationwide program that provides bright high school students with opportunities to take college level courses dur ing the upper years of their high school work, 20 percent of all high schools offering such courses and 25 percent of all 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 eda cation 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.

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 class rooms 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 repairs.

Despite local, State, and National programs for updating 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 learning materials in all areas of the cur riculum are essential if learning opportunities 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 repor of a study of New York City schools by State and National educational special ists credited the city's schools with many fine achievements, but pointed to the "staggering problems" they face, and to their struggle against incredible odd to provide education of high caliber. One competent observer has called th educational problems of New York City "so tremendous that they almost def description"; another has referred to them as "social dynamite." The presiden of the board of education, in an address before the board of estimate and the cit council in New York on May 2, 1963, stated that the funds allocated by the cit for education were not sufficient to make even a modest dent in the accumulate school problems of the city. The funds necessary for making a massive den in the city's school problems must be forthcoming-and soon.

The educational problems of our large cities, such as New York City, are n longer solely the responsibility of local government, nor of State and local gov ernments. They are a national responsibility created, in part, by national con ditions. The results of neglect of education in these cities reach far beyond local or State boundaries, and their problems must receive the increased atten tion 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 chang present trends, we shall have, by 1970, in New York State, an estimated 786.00 more young non-high-school graduates than the number of jobs available fo them. 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 o education.

To help solve these serious problems of imbalance between education an jobs, the schools will have to upgrade instruction all along the line and provid the kind and quality of programs that will keep more students in school through