CHAPTER XXII INTRODUCTION The present account of public school support in the territory of Alaska was originally completed in the year 1917. It was thereupon submitted to Hon. L. E. Henderson, commissioner of education of the territory of Alaska, and also to Dr. William Hamilton, of the Alaskan Division of the United States Bureau of Education, Washington, D.C. It has not only been modified in a number of minor details upon the basis of the suggestions made by these two public officials but where possible it has been revised in the light of more recent legislation and data for the year 1920. The fact that at the present time there exists nowhere any description of the system of school support in the territory of Alaska would seem to justify presenting any account, however brief. The territory of Alaska was purchased by the United States from Russia in 1867. It was not until 1912, however, that provision was made for the organization of a territorial legislature. The estimated area of Alaska is 590,884 square miles. Its most important industries and occupations are (1) mining; (2) fishing and certain industries connected with the preservation and marketing of fish, (these include canning and the manufacture of boxes for the canning industry); (3) agriculture, of more recent development but of increasing importance. According to the United States census of 1920, the population of Alaska is estimated at 55,036, divided about equally between (1) natives (Eskimo and other aboriginal races), and (2) whites and those of mixed race.3 “It is probable that the native population is decreasing slowly, except in southeastern Alaska where sanitary and other conditions are more favorable to the prolongation of native life." "The white population is extremely mobile and few towns have an assured or definite future."5 During the past decade, i.e., from 1910 to 1920, the population decreased from 64,356 to 55,036, a total decrease of 9320. During this period the white population decreased over 8000 and the Indian population slightly over 1000.3 It is impossible to present satisfactory data regarding the school population and school attendance in Alaska prior to 1920 as such data are not 1 Organic Act, approved August 24, 1912, Alaska Session Laws, 1915. Thirteenth Census of the United States, 1910, Abstract with Supplement for Illinois, p. 28, Table 8. Governor of Alaska Report, 1911, p. 471. Ibid., 1916, 2:382. Alaska, Encyclopedia Britannica, Eleventh edition, 1:476. given in the available official school reports of the territory. In 1913 a compulsory school law was passed applicable to white children and to children of mixed blood leading a civilized life between the ages of 8 and 16 residing within two miles of any school outside of an incorporated town. If the parent, guardian, or other person having control of such child permits him to be absent from school a total of five days in any school quarter, he is guilty of a misdemeanor punishable by a fine of $5 to $20 and costs for each five days of absence, and shall be imprisoned in the federal jail till the fine and costs are paid, or one day for each $2 due. Such fines may, however, be suspended at the discretion of the judge, and if the person complies faithfully with the condition of the suspended sentence, it may be indefinitely suspended." The total school population (5 to 18 years) numbered 12,530 in 1920, of whom 6326, or 50.5 per cent, were reported as attending school. The number in average daily attendance was 2505,8 which shows that approximately four fifths of the total school population are not in average daily attendance. As might be expected, owing to the character of the population, which is largely Indian, the mode of life of the native tribes, and to the difficulties of transportation and other conditions, illiteracy is very high when we consider the population as a whole. In 1920 according to the United States Census Bureau Report, there were 10,874 illiterates in Alaska. This is about 24.8 per cent of the total population." "For native whites of native parentage the percentage in 1910 was 9/10 of one per cent; in 1920, 6/10 of one per cent. For each class except the Indians the percentage of illiteracy was lower in the Alaskan population than it was in the United States. In the Alaskan population, however, the large proportion of Indians, among whom the percentage of illiterates is very high, raises the percentage for the population as a whole above that for the total population in the United States." 10 In the list of states and territories reported by the Federal Commissioner of Education, Alaska ranks the lowest, namely fiftieth, as to the literacy of total population 10 years of age and over. The state which most closely approaches Alaska is Louisiana where approximately 22 per cent of the population ten years of age and over is illiterate.11 Alaska Session Laws, 1913, ch. 44, sec. 1; ibid., 1915, approved April 28, 1915; Alaska School Laws, 1919, p. 32, art. 11, secs. 103, 104. United States Bureau of Education Bulletin, 1922, No. 29, pp. 64-65, Table 46. 8 Ibid., p. 15, Table 8. Fourteenth Census of the United States, 1920, Population, 2:1166, Table 16. 10 Thirteenth Census of the United States, 1910, 3:1148-50. United States Bureau of Education Bulletin, 1922, No. 29, p. 67, Table 48. ORGANIZATION AND ADMINISTRATION OF SCHOOLS Provisions in Organic Act.-It is unnecessary to state that the Organic Act of a territory corresponds in a rough way, at least, to the constitution, to be adopted later when the territory becomes a state. It is then to the Organic Act of the territory of Alaska that we turn for provisions corresponding to the constitutional provisions of the states. The only provision in the Organic Act of Alaska bearing directly upon school aid is that which provides: That the authority herein granted to the legislature [of Alaska] to alter, amend, modify and repeal laws in force in Alaska shall not extend to the laws of the United States providing for taxes on business and trade1 or to the act entitled "An Act to Provide for the Construction and Maintenance of Roads, the Establishment and Maintenance of Schools" . . . in the district of Alaska approved January 27th, 1905, and the several acts amendatory thereof." For purposes of administration and support the common schools of Alaska are divided into two groups :14 (1) schools for natives (Eskimos and other aboriginal races); (2) public schools maintained for whites and children of mixed blood who lead a civilized life. Public schools fall into three classes, schools maintained in incorporated towns, schools maintained in incorporated school districts outside the limits of any incorporated town, and schools maintained outside incorporated towns or incorporated districts. Included in this last group are the schools commonly known as Nelson schools. Schools for natives.-The education of the natives is under the direction and control of the federal secretary of the interior who delegates such direction and control to the United States commissioner of education. "The Superintendent of Education of the natives of Alaska has general supervision of the work of the Bureau of Education in Alaska. Each of the five school districts is under the immediate charge of a district superintendent, appointed by the secretary of the interior upon the recommendation of the commissioner of education. The district superintendent delegates to the teachers large powers in local affairs." 15 Public schools.-Prior to 1915 the governor of Alaska was ex officio territorial superintendent of schools.15 In 1915, however, a law was passed providing for a general and uniform system of schools to include common schools, high schools, grammar, primary, and kindergarten schools and "such other schools as may hereafter be created." This act further provided 12 Organic Act, sec. 3, approved August 24, 1912. 13 See below "Alaska fund." 14 W. R. Hood, Digest of State Laws Relating to Public Education, United States Bureau of Education Bulletin, 1915, No. 47, pp. 969-70. 15 Ibid., p. 969. for the general supervision of public schools to be vested in a territorial board of education.18 In 1917 a law was passed which carried out the provisions made in 1915 for the establishment of a uniform system of education but provided for a territorial board of education to be composed of the governor and four senior senators, one from each district of the territory. Section 5 of this act authorized the board to appoint a commissioner of education to hold office for two years. In compliance with the provisions of this act, Hon. Lester B. Henderson was made territorial commissioner of education. 17 Nelson schools.-The Nelson, or district, schools are administered according to the district system. According to the laws of 1919, the clerk of the district court is required upon petition of not less than eight adults who are citizens of the United States or who have declared their intention to become such and who reside in any village or settlement outside of the limits of any incorporated town, to establish a school district at such place. Each such district shall embrace not more than 40 square miles nor contain fewer than 10 resident white children, or children of mixed blood who lead a civilized life, between the ages of 6 and 17 years. It is also the duty of the clerk upon establishing a district to cause an election to be held for the selection of a school board to serve one year.18 The school district is under the general charge of a district school board consisting of a clerk, a treasurer, and a director. The district school board is empowered to build or rent, equip and furnish schoolhouses or school rooms, to hire and employ teachers, and to do everything else necessary for the maintenance of the school.19 Public schools in incorporated towns.-In an incorporated town, the common council is required to establish school districts and provide suitable schoolhouses.20 The local supervision and control of the schools rests with a local board of three members, a director, a clerk, and a treasurer elected by the qualified voters of the town, for terms of three years, one being elected each year. The municipal school board is authorized to employ teachers, provide light and fuel, and to do everything else necessary for the maintenance of the school.21 Any town, village, or settlement outside the limits of an incorporated town, having a population of not less than one hundred and containing at least thirty children between the ages of 6 and 20 years and not embracing more than 40 square miles may incorporate as a school district upon a 16 Alaska Session Laws, 1915, ch. 74, secs. 1 and 2. 17 Ibid., 1917, ch. 64, secs. 1-6, approved May 3, 1917. 20 Ibid., p. 20, sec. 55. 21 Ibid. |