To the Congress of the United States:
Our progress as a nation can be no swifter than our progress in education. Our requirements for world leadership, our hopes for economic growth, and the demands of citizenship itself in an era such as this all require the maximum development of every young American's capacity.
The human mind is our fundamental resource. A balanced Federal program must go well beyond incentives for investment in plant and equipment. It must include equally determined measures to invest in human beings - both in their basic education and training and in their more advanced preparation for professional work. Without such measures, the Federal Government will not be carrying out its responsibilities for expanding the base of our economic and military strength.
Our progress in education over the last generation has been substantial. We are educating a greater proportion of our youth to a higher degree of competency than any other country on earth. One-fourth of our total population is enrolled in our schools and colleges. This year 26 billion dollars will be spent on education alone.
But the needs of the next generation - the needs of the next decade and the next school year - will not be met at this level of effort. More effort will be required - on the part of students, teachers, schools, colleges and all 50 states - and on the part of the Federal Government.
Education must remain a matter of state and local control, and higher education a matter of individual choice. But education is increasingly expensive. Too many state and local governments lack the resources to assure an adequate education for every child. Too many classrooms are overcrowded. Too many teachers are underpaid. Too many talented individuals cannot afford the benefits of higher education. Too many academic institutions cannot afford the cost of, or find room for, the growing numbers of students seeking admission in the 60's.
Our twin goals must be: a new standard of excellence in education - and the availability of such excellence to all who are willing and able to pursue it.
I. ASSISTANCE TO PUBLIC ELEMENTARY AND SECONDARY SCHOOLS
A successful educational system
requires the proper balance, in terms of both quality and quantity, of
three elements: students, teachers and facilities. The quality of the students
depends in large measure on both the quality and the relative quantity
of teachers and facilities.
Throughout the 1960's there will be no lack in the quantity of students. An average net gain of nearly one million pupils a year during the next ten years will overburden a school system already strained by well over a half-million pupils in curtailed or half-day sessions, a school system financed largely by a property tax incapable of bearing such an increased load in most communities.
But providing the quality and quantity of teachers and facilities to meet this demand will be major problems. Even today, there are some 90,000 teachers who fall short of full certification standards. Tens of thousands of others must attempt to cope with classes of unwieldy size because there are insufficient teachers available.
We cannot obtain more and better teachers - and our children should have the best - unless steps are taken to increase teachers' salaries. At present salary levels, the classroom cannot compete in financial rewards with other professional work that requires similar academic background.
It is equally clear that we do not have enough classrooms. In order to meet current needs and accommodate increasing enrollments, if every child is to have the opportunity of a full-day education in an adequate classroom, a total of 600,000 classrooms must be constructed during the next ten years.
These problems are common to all states. They are particularly severe in those states which lack the financial resources to provide a better education, regardless of their own efforts. Additional difficulties, too often overlooked, are encountered in areas of special educational need, where economic or social circumstances impose special burdens and opportunities on the public school. These areas of special educational need include our depressed areas of chronic unemployment and the slum neighborhoods of our larger cities, where underprivileged children are overcrowded into substandard housing. A recent survey of a very large elementary school in one of our major cities, for example, found 91% of the children coming to class with poor diets, 87% in need of dental care, 21% in need of visual correction and 19% with speech disorders. In some depressed areas roughly one-third of the children must rely on surplus foods for their basic sustenance. Older pupils in these schools lack proper recreational and job guidance. The proportion of dropouts, delinquency and classroom disorders in such areas in alarmingly high.
I recommend to the Congress a three-year program of general Federal assistance for public elementary and secondary classroom construction and teachers' salaries.
Based essentially on the bill which passed the Senate last year (S. 8), although beginning at a more modest level of expenditures, this program would assure every state of no less than $15 for every public school student in average daily attendance, with the total amount appropriated (666 million dollars being authorized in the first year, rising to $866 million over a three-year period) distributed according to the equalization formula contained in the last year's Senate bill, and already familiar to the Congress by virtue of its similarity to the formulas contained in the Hill-Burton Hospital Construction and other acts. Ten percent of the funds allocated to each state in the first year, and an equal amount thereafter, is to be used to help meet the unique problems of each state's "areas of special educational need" - depressed areas, slum neighborhoods and others.
This is a modest program with ambitious goals. The sums involved are relatively small when we think in terms of more than 36 million public school children, and the billions of dollars necessary to educate them properly. Nevertheless, a limited beginning now - consistent with our obligations in other areas of responsibility - will encourage all states to expand their facilities to meet the increasing demand and enrich the quality of education offered, and gradually assist our relatively low-income states in the elevation of their educational standards to a national level.
The bill which will follow this message has been carefully drawn to eliminate disproportionately large or small inequities, and to make the maximum use of a limited number of dollars. In accordance with the clear prohibition of the Constitution, no elementary or secondary school funds are allocated for constructing church schools or paying church school teachers' salaries; and thus non-public school children are rightfully not counted in determining the funds each state will receive for its public schools. Each state will be expected to maintain its own effort or contribution; and every state whose effort is below the national average will be expected to increase that proportion of its income which is devoted to public elementary and secondary education.
This investment will pay rich dividends in the years ahead - in increased economic growth, in enlightened citizens, in national excellence. For some 40 years, the Congress has wrestled with this problem and searched for a workable solution. I believe that we now have such a solution; and that this Congress in this year will make a land-mark contribution to American education.
II. CONSTRUCTION OF COLLEGE AND UNIVERSITY FACILITIES
Our colleges and universities
represent our ultimate educational resource. In these institutions are
produced the leaders and other trained persons whom we need to carry forward
our highly developed civilization. If the colleges and universities fail
to do their job, there is no substitute to fulfill their responsibility.
The threat of opposing military and ideological forces in the world lends
urgency to their task. But that task would exist in any case.
The burden of increased enrollments - imposed upon our elementary and secondary schools already in the fifties - will fall heavily upon our colleges and universities during the sixties. By the autumn of 1966, an estimated one million more students will be in attendance at institutions of higher learning than enrolled last fall - for a total more than twice as high as the total college enrollment of 1950. Our colleges, already hard-pressed to meet rising enrollments since 1950 during a period of rising costs, will be in critical straits merely to provide the necessary facilities, much less the cost of quality education.
The country as a whole is already spending nearly $1 billion a year on academic and residential facilities for higher education - some 20 percent of the total spent for higher education. Even with increased contributions from state, local and private sources, a gap of $2.9 billion between aggregate needs and expenditures is anticipated by 1965, and a gap of $5.2 billion by 1970.
The national interest requires an educational system on the college level sufficiently financed and equipped to provide every student with adequate physical facilities to meet his instructional, research, and residential needs.
I therefore recommend legislation which will:
(1) Extend the current College Housing Loan Program with a five year $250 million a year program designed to meet the Federal Government's appropriate share of residential housing for students and faculty. As a start, additional lending authority is necessary to speed action during fiscal 1961 on approvable loan applications already at hand.
(2) Establish a new, though similar, long-term, low-interest rate loan program for academic facilities, authorizing $300 million in loans each year for five years to assist in the construction of classrooms, laboratories, libraries, and related structures - sufficient to enable public and private higher institutions to accommodate the expanding enrollments they anticipate over the next five years; and also to assist in the renovation, rehabilitation, and modernization of such facilities.
III. ASSISTANCE TO COLLEGE AND UNIVERSITY STUDENTS
This nation a century or so ago
established as a basic objective the provision of a good elementary and
secondary school education to every child, regardless of means. In 1961,
patterns of occupation, citizenship and world affairs have so changed that
we must set a higher goal. We must assure ourselves that every talented
young person who has the ability to pursue a program of higher education
will be able to do so if he chooses, regardless of his financial means.
Today private and public scholarship and loan programs established by numerous states, private sources, and the Student Loan Program under the National Defense Education Act are making substantial contributions to the financial needs of many who attend our colleges. But they still fall short of doing the job that must be done. An estimated one-third of our brightest high school graduates are unable to go on to college principally for financial reasons.
While I shall subsequently ask the Congress to amend and expand the Student Loan and other provisions of the National Defense Education Act, it is clear that even with this program many talented but needy students are unable to assume further indebtedness in order to continue their education.
I therefore recommend the establishment of a five-year program with an initial authorization of $26,250,000 of state-administered scholarships for talented and needy young people which will supplement but not supplant those programs of financial assistance to students which are now in operation.
Funds would be allocated to the states during the first year for a total of twenty-five thousand scholarships averaging $700 each, 37,500 scholarships the second year, and 50,000 for each succeeding year thereafter. These scholarships, which would range according to need up to a maximum stipend of $1000, would be open to all young persons, without regard to sex, race, creed, or color, solely on the basis of their ability - as determined on a competitive basis - and their financial need. They would be permitted to attend the college of their choice, and free to select their own program of study. Inasmuch as tuition and fees do not normally cover the institution's actual expenses in educating the student, additional allowances to the college or university attended should accompany each scholarship to enable these institutions to accept the additional students without charging an undue increase in fees or suffering an undue financial loss.
IV. VOCATIONAL EDUCATION
The National Vocational Education
Acts, first enacted by the Congress in 1917 and subsequently amended, have
provided a program of training for industry, agriculture, and other occupational
areas. The basic purpose of our vocational education effort is sound and
sufficiently broad to provide a basis for meeting future needs. However,
the technological changes which have occurred in all occupations call for
a review and re-evaluation of these Acts, with a view toward their modernization.
To that end, I am requesting the Secretary of Health, Education, and Welfare to convene an advisory body drawn from the educational profession, labor-industry, and agriculture as well as the lay public, together with representation from the Departments of Agriculture and Labor, to be charged with the responsibility of reviewing and evaluating the current National Vocational Education Acts, and making recommendations for improving and redirecting the program.
These stimulatory measures represent
an essential though modest contribution which the Federal Government must
make to American education at every level. One-sided aid is not enough.
We must give attention to both teachers' salaries and classrooms, both
college academic facilities and dormitories, both scholarships and loans,
both vocational and general education.
We do not undertake to meet our growing educational problems merely to compare our achievements with those of our adversaries. These measures are justified on their own merits - in times of peace as well as peril, to educate better citizens as well as better scientists and soldiers. The Federal Government's responsibility in this area has been established since the earliest days of the Republic - it is time now to act decisively to fulfill that responsibility for the sixties.
JOHN F. KENNEDY