The History of Alabama Two-Year Colleges and Its Relevance ...training.ua.edu/academy/_documents/2013-2014/History-of-Alabama... · The History of Alabama Two-Year Colleges and Its

The History of Alabama Two-Year

Colleges and Its Relevance Today

Presentation to the 2013

Alabama Community College Leadership Academy by

Dustin Smith

Snead State Community College July 15, 2013

What we'll talk about today

• The establishment of community

colleges nationally

• The establishment of community

colleges in Alabama

• How community college establishment

differed in Alabama as compared to

other states

• The relevance of establishment today.

The Education Policy Center at the University of Alabama

The Traditional Narrative

• Almost every book about community colleges

list a common path to their creation.

• Typically the story is a national, grassroots

movement created by the efforts of prominent

educators.

• By relying solely on these narratives one

would conclude that junior college

establishment was top-down and very

standardized across the nation.

Problems with the Traditional

Narrative • No evidence in the literature.

– Especially in Alabama

• Not logical to assume all motives the

same.

• Ignores differences in location.

Establishment of JCs was a VERY

INCONSISTENT process prior to 1950

• The very idea was new: to extend universal access

to 13/14th years to all citizens (Truman Comm., 1947)

• Diverse governance: Of the 260, 74 (28%) governed

by Us; 52 (58%) by K-12 bds, 34 (13%) independ bds.

• Diverse functions: Process was bottom-up prior to

1950, with accreditation and state enabling laws.

• Achieving geographic access: was a major goal of

education planners and political leaders.

• Two-Year College planning did not occur in a

vacuum: Major changes were also occurring in the

four year sector. Then there was federal help for

K-12 school construction, Sputnik/NDEA, and race.


NUMBER OF JUNIOR COLLEGES AND

ENROLLMENTS BY REGION, 1950

Region Number Enrollment

New England 42 19,314

Middle States 80 52,493

North Central 206 110,354

Southern 204 92,599

Northwest 23 24,477

Western 80 162,059 Source: J.P. Bogue and Shirley Sanders, "Junior College Director, 1950," Junior College Journal, XX (January,

1950, p 319), in Young, 1950. p. 60.


2. ESTABLISHMENT OF

COMMUNITY COLLEGES IN

ALABAMA


Private Two-Year Colleges in

Alabama • The first two-year colleges in Alabama were private,

denominational colleges.

• At least nine private junior colleges were operating in

Alabama before the start of World War II.

• Three of the earliest institutions, (Selma University,

Lomax-Hanon Junior College, and Concordia College)

were historically black colleges started to educate black

ministers and teachers.

• The return of White Bourbon Democrats to power during

the 1870’s eliminated most public educational

opportunities for African-Americans in the South.

– Abolished State Board of Education

– Draconian Cuts to Education Funding (Flynt, 2006)


Alabama • White Southern denominations

had sought to educate slaves

prior to the Civil War, but lost

interest after the War.

• With few public options and little

support from Southern Whites,

African-American churches in

Alabama started their own

institutions with help from

Northern religious groups.

• Northern aid was also essential

in helping start white

denominational colleges as well.

•

Selma University, 1st Two-Year

HBCU in Alabama


Alabama • Snead Seminary in Boaz (Methodist), St. Bernard and

Sacred Heart Junior Colleges in Cullman (Catholic), and

Southern Union Junior College (Disciples of Christ) all

received substantial support from outside of the South.

• Private two-year colleges in Alabama prior to World War

II filled in the gap in public education.

• Many offered what would now be considered

remediation courses and most included high schools

because there were no public high schools in the area.

• If not for determined Alabama citizens and Northern

philanthropy, the educational situation of Alabama prior

to World War II would have truly been abysmal.

LACK OF PUBLIC JUNIOR COLLEGE

ESTABLISHMENT IN ALABAMA

• Public experiments with junior colleges began as early

as 1901, but the first public junior college in Alabama

was established in 1961.

• By World War II, many Southern states including

Mississippi, Louisiana, Florida, and Texas had some

form of public junior college usually started by local K-12

Board.

• Prior to World War II, Alabama had only one public two-

year educational institution.

• Two key elements of the 1901 Constitution directly relate

to the lack of “bottom-up” junior college establishment in

Alabama.

1901 Constitution

• In Alabama in the Twentieth

Century, Auburn historian

Wayne Flynt listed three goals

for the delegates to the 1901

Constitutional Convention:

• 1. To disenfranchise blacks and

poor whites.

2. To keep property taxes

artificially low.

3. To remove power from local

governments.

•

Signers of the 1901 Constitution

1901 Constitution: Lack of Local

Governance • The principle of limited local governance was established

by the 1901 Constitution as a reaction to the “Populist

Revolt” of the 1890’s during which Populist candidates

won many local elections and would have won the

Governor’s race if not for widespread election fraud.

• In order to reign in the people, the 1901 Constitution

stripped virtually all power from county and municipal

governments.

• Almost every local decision had to have the Legislature’s

approval before being put to the vote of the people, and

if one “No” vote was cast in the Legislature, the issue

appeared on the statewide ballot.

1901 Constitution: Lack of Local

Governance • This set-up gave the “Big Mule” planters and industrialists the

power to control virtually every area of the State by controlling

the key state elections.

• The consequence of this was that local innovation and

initiative were replaced by the leadership of politicians in

Montgomery.

• This prevented local communities from establishing public

junior colleges. (This was the predominant method of

establishment in other states.)

• When Cullman County wanted to start a public junior college

in 1928, they contacted Montgomery for permission. This

request was denied and no public junior college was opened.

(Many cities in other states started colleges with no legislation

or permission.)

1901 Constitution: Permanently

Low-Taxes • The 1901 Constitutional Convention was dominated by

wealthy planters and businessmen who wanted property

taxes low and a strict limit on raising them.

• Property taxes were capped at five mills and no local taxes

(except sales taxes) could be raised locally without a

statewide Constitutional Amendment.

• This means that local educational programs must rely on

regressive, unpredictable sales taxes for the bulk of their

budget.

• This situation leads to a “boom” or “bust” budget that does

not provide any certainty or security and is very sensitive to

overall economic conditions.

1901 Constitution: Permanently

Low-Taxes • State funding of education in Alabama prior to World

War II was very limited.

• Without the ability to raise local taxes and with little

support from the State, municipalities and counties could

not risk starting a new educational institution especially

when they didn’t have the funds to operate the ones

already present.

• It’s clear that some cities and counties in Alabama

wanted public junior colleges long before 1961, but

without stable funding, they took the common Alabama

approach- Wait on Montgomery.

1901 Constitution: Summary

• By restricting local governance in 1901, a culture of

helplessness and dependence on Montgomery was

ingrained in local governments the mid-1920’s.

• The scarcity of revenue and the inability to generate

more revenue mean that local school districts were in a

constant struggle to make ends meet.

• However when times were good, the memories proration

and the demands of neglected projects prevented

educational expansion on the part of K-12 Boards.

• The 1901 Constitution virtually guaranteed that Two-

Year Colleges in Alabama could not be started from the

“bottom-up” as they were in many other states.

1901 Constitution: Summary

• Nor could they be locally controlled and funded

without Constitutional reform or extensive

amending which would require broad public

support.

• The most practical method of governance and

funding under the 1901 Constitution was through

Montgomery.

• The 1901 Constitution created as many (if not

more) of today’s governance and coordination

problems as George C. Wallace.

Trade School Establishment in

Alabama Prior WWII • Two public trade schools were

established in Alabama prior to

World War II.

• The Alabama School of Trades

at Gadsden was established in

1925 after being authorized by

the Legislature in 1919.

• This institution was started

through efforts of Senator Watt

Brown and the people of the

Gadsden area for the

education of “poor white boys.” Sen. Watt Brown, Ragland,

AL in St. Clair County

Trade School Establishment in

Alabama Prior WWII • The Decatur Trade School

was opened in 1940 as a

result of World War II.

• The institution trained badly

needed workers for the

shipyards in Decatur during

the duration of the War.

• Workers in the Decatur

shipyards built at least 139

vessels for the US Military

during this time.

Army barge launched into TN River

at Decatur, AL. Built by Ingalls

Decatur July 1942,

Post WWII to Wallace Era

(1963-87) • Demands of the returning G.I.’s

threatened to overload Alabama’s

educational system.

• The state had at least 17 four-

year institutions, but only 2 trade

schools.

• In order to accommodate veterans

who did not desire a four-year

degree, Freshman Representative

and WWII Veteran George C.

Wallace introduced the Regional

Vocational and Trade School Act

of 1947.

George, Lurleen, and

Bobbi Jo Wallace c. 1945


(1963-87) • With the support of Governor

James “Big Jim” Folsom the

legislation passed and created

four additional trade schools in

Alabama.

• The institutions were located at

Dothan, Wenonah (Black),

Mobile, and Tuscaloosa.

• A statewide study on the

locations was ignored for

Tuscaloosa mainly because of

politics on the SBOE which

had 3 current legislators as

members.

James “Big Jim” Folsom c. 1947


(1963-87) • The addition of the Decatur Trade School and the

Alabama School of Trades into this “system” brought the

number of trade schools to six.

• In 1955, (Jim Folsom was in his 2nd term as Governor) a

bill passed the legislature authorizing three additional

trade schools.

• These institutions were established in Huntsville (Black),

Mobile (Black), and Montgomery (White).

• Also during this time, Gadsden and Ozark operated

municipal trade schools or technical colleges that would

eventually be placed under state-control.

Publicly Controlled Technical Colleges in

Alabama, Pre-1961 NO STATE OR MUNICIPAL PUBLIC JUNIOR COLLEGES

PRE-1947 Alabama School of Trades, Gadsden, 1925

Tennessee Valley State Technical School, 1941

REGIONAL TRADE SCHOOL ACT, 1947 (written by freshman State

Representative George C. Wallace)

• George C. Wallace State Technical Trade School (Dothan), 1947

• Wenonah State Technical Institute, 1949 (B)

• Shelton State Technical Institute, 1952

• Southwest State Technical Institute (Mobile), 1953

• Carver State Technical Institute (Mobile), 1960 (B)

• Huntsville State Vocational Technical School, 1961

• Patterson State Technical College (Montgomery), 1961

• Alabama Aviation and Technical College (Ozark), 1962

• Gadsden Vocational Trade School, (B) 1962


Public Junior College

Establishment in Alabama • In September 1961, two bills passed the Alabama

Legislature creating junior colleges in Northwest

(Franklin, Marion, and Winston Counties) and Northeast

Alabama (Jackson and Dekalb Counties).

• These colleges were controlled by a local board and

received most of their funds from local governments.

• Because of the local funding requirement, the college in

Northeast Alabama did not open because of the financial

conditions of local K-12 systems did not permit the

transfer of any funds.

• The college in Northwest Alabama was established as

Northwest Alabama State Junior College.

Summary of Two-Year Colleges

Pre-Wallace • When Wallace took office there were:

– 6 White Private Junior Colleges

– 3 Historically Black Private Junior Colleges

– 11 State Controlled Trade Schools

– 1 State Controlled Junior Colleges

• 14 of these institutions eventually became part of

the Alabama Community College System after 1963.

• Nearly 1/3 of the institutions that came into the

system during the Wallace era were in operating

prior his inauguration.

A couple of key points about

George C. Wallace • In the second half of the

20th century, George

Wallace was the towering

figure in Alabama.

• His 4 four-year terms and

the two years of Lurleen

Wallace-18 of 24 years-

might be the longest tenure

in office of any governor of

any state in our country in

the 20th century.


Wallace stands in the “school

house door” at UA 1963.

A couple of key points about

George C. Wallace

• Rural Alabama was his

home, his political power

base, and truly cared about

its people

• This is why it is important

to examine the landscape

facing this master politician

prior to assuming his first

term in 1963, as this has

important implications for

governance and

coordination for the

colleges that emerged.

The “fightin’ little judge” giving a speech.

Wallace earned the nickname because

of his boxing days, size, and early

political career as judge in rural SE

Alabama.

APRIL 1963: "Governor, I've got

something here that will make you

famous"

• Rankin Fite, Speaker Pro-

Temp, presented plan to

Wallace.

• Former Governor Albert

Brewer, Speaker of the

House at the time,

recalled that “it was the

most casual thing you

ever saw. The whole

conversation took less

than 5 minutes”

Rankin Fite Albert Brewer


APRIL 1963: "Governor, I've got

something here that will make you

famous"

• Wallace's 1958 & 1962 platforms called for "a

breakthrough in education funding," more trade schools,

AND strong opposition to integration.

BUT…

• No statewide studies/statewide plans for CCs had ever

been conducted in Alabama.

• Few nationally recognized experts on CCs from other

states were ever brought to Alabama.

• Inherent flaws in the planning from the early years are

sadly reflected decades later.

The Alabama Junior College and

Trade School Authority Act of 1963

• Passed after the second longest filibuster in

Alabama State Senate history (109 hrs) the

opposition mainly focused on financing the colleges.

• Created a public authority to build new JCs/trade

schools, controlled by Wallace.

• Alabama State Board of Education would operate

and locate the institutions (not UA or AU).

• Because the State Board of Education was

appointed by the Governor, Wallace would play a

pivotal role in locating the new institutions, naming

them, and selecting the founding presidents.


Wallace’s Control of the Early

System • "It was a Wallace system," said one president in 2006.

• The Administration Building on each campus was named after

Wallace.

• Wallace initially called for naming many Colleges after his

favorite Confederate war heroes (Nathan Bedford Forrest,

Jefferson Davis, etc.)

• Wallace’s control over personnel decisions was also

extensive. Each President and Dean was personally approved

by Wallace after consultation with supporters in the area.

• Wallace was even involved in selecting the Custodian at one

institution.

• One still hears rumors and stories of patronage (stuffing direct

mailings for the Wallace presidential campaigns, etc.).

With no planning at all, Alabama created

a "Baskin Robbins" of 2 Year Colleges

• Expansion of the system began almost immediately.

• The Legislature authorized 5 Junior Colleges and 5 Trade

Schools, but the SBOE authorized 10 Junior Colleges and

10 Trade Schools.

• This expansion was done with little planning and no

statewide study.

• By Lurleen Wallace's death in 1968, the process (with all

its flaws) for establishing Alabama's 2 year colleges was in

place.

• The system continued expansion in 2nd and 3rd Wallace

Administrations (1971-1979) eventually reaching 44

separate institutions.


PRIVATE TWO-YEAR COLLEGES

THAT BECAME PUBLIC

• John H. Snead Seminary Methodist

School, 1906, later, Snead State Junior

College, 1967, and SSCC in 1992

• Bethlehem College, 1923; later in 1964,

Southern Union College; in 1965,

Southern Union State Junior College,

SUSCC in 1993.

No private HBCU ever was asked to join

the system


3. How community

colleges established in

Alabama differed as

compared

to other states


A TYPOLOGY OF STATE-LEVEL COMMUNITY COLLEGE

GOVERNANCE AND COORDINATION (1/2009)

LOCAL GOVERNANCE FOR COMMUNITY COLLEGES, WITH...

--State Coordination for CCs under Board

separate from K-12 & 4Year Universities……………… 13 states

--State Coordination under same Board as K-12,

but separate from 4 Year Universities………………… 3 states

--State Coordination under SAME board

for CCs and 4-Year Universities……………………….. 17 states

--no State Coordination for CCs…………………………….. 3 states

NO LOCAL GOVERNANCE FOR CCs, WITH SAME STATE BOARD THAT...

--governs and coordinates both CCs and Universities… 6 states

--governs and coordinates CCs, separate from

both K-12 and 4-Year Universities………………….. 7 states

--governs CCs and coordinates BOTH

CCs and K-12………………………………………… 1 state-AL


In Alabama... • No comprehensive statewide planning studies, to

(1) tie the new institutions into both K-12 and

emerging 4 year colleges and universities.

– No significant statewide coordinating board exists.

• (2) encourage communities to take ownership of

the challenge to develop coalitions of support.

– No local governing boards.

• Failure to plan means expensive duplication, and

serious gaps in services which exist now.

– Racial factors also contributed to this.


4. Relevance of

Establishment Today


INHERENT FLAWS INCLUDED

• For rural Alabama, while the system delivered on

the promise of extending geographic access in

most areas, it failed to deliver programmatic

access. – One had to be born in the right part of the state to easily

benefit from public postsecondary programs and

services.

• In urban/suburban Alabama, no metropolitan

community college districts were created. – This dilutes marketing dollars

– Causes Duplication of Services

– Discourages local funding.


INHERENT FLAWS INCLUDED

• The lack of local governance means no local

taxes go to community colleges. This has

benefits…and disadvantages.

• Advantages include passing regulations that are

fair statewide, so that faculty in poorer high

poverty rural areas are paid fairly.

• Disadvantages include tendency for state offices

to promote "one size fits all" policies for

promotion, tenure, hiring of adjunct faculty,

workforce training, etc., that may not account for

geography/local differences.


Conclusion

• George Wallace has been dead for nearly 20 years,

and has not been Governor for a generation, but

system that caused these problems is still in place.

• Constitutional reform and a new, fairer, and more

efficient and effective tax system is essential for

Alabama to move forward.

– Provide consistent funds.

– Foster local initiative, funding, and ownership.\

• Alabama must figure out how to build sustainable

political coalitions move the entire state FORWARD.


Documents

The History of Alabama Two-Year Colleges and Its Relevance ...training.ua.edu/academy/_documents/2013-2014/History-of-Alabama... · The History of Alabama Two-Year Colleges and Its