A study of selected public schools on and off Indian reservations in Arizona

              I' Technical Assistance Grant FCRC #151-299-048
DECEMBER. 1975
A STUDY
OF
SELECTED PUBLIC SCHOOLS
ON AND OFF
INDIAN RESERVATIONS
IN
ARIZONA
Printed by
Arizona Department of Education
Carolyn Warner, Superintendent
January 1976
O Arizona Department of Education, 1976
Parts of this report may be reproduced only
with credit, in context, and with prior notice
to the Arizona Department of Education.
PREFACE
This report attempts to provide accurate data necessary to describe the condition of education in
selected Arizona school districts on and near the major Indian reservations in Arizona. In an effort
to assure objectivity, this project was advertised and proposals invited. As a result of this effort, an
independent consultant - Neolegics (an Arizona corporation), David B. Kret, president, was
selected (see Appendix B). In order to provide for local input and validation, each of the Indian
reservation school districts identified in the initial proposal and associated Indian tribes were asked
to name a representative to an advisory council. The resulting advisory council was composed of
the following:
Milford M. Sanderson
Hopi Tribe
Alexander Lewis, Sr.
Gila River
Indian Tribal Committee
Elvin Dashee
Hopi Tribal Council
Dana Nelson
Sacaton District No. 18
Peterson Zah
Window Rock District No. 8
Rex I. Linville
Kayenta District No. 27
Ronnie Lupe, Chairman
White Mountain Apache Tribe
Lorraine Du Ganne
Ganado District No. 19
Adam Lupe, Sr.
Whiteriver District No. 20
Phillip W. Norris
Tuba City Public Schools
Frank Adakai
Chinle District No. 24
Dillon Platero
The Navajo Tribe
This committee met prior to the beginning of the field work to review the program plans and
forms. The committee caused adoption of revisions such as the separation of curriculum surveys
between elementary grades (K-8) and high school (9-12) and extension of the review to include
some Bureau of Indian Affairs (BIA) and public school interfaces. Many of the members consented
to be interviewed and met with the consultants during their visits to the individual districts.
The committee was again asked to review a rough draft of the final report. One of the critiques
was too lengthy to append to the report. As a result of all responses, the consultants clarified the
text, reviewed and corrected data elements, extended certain areas of coverage, and noted specific
comments through use of footnotes. The footnotes were employed where pertinent comments or
specific differences were cited by the advisory committee member. Based on the input received
from committee members, extensive revisions have been made in the final report.
Prior to printing, a final rough draft was presented for review at a meeting to which the
superintendent of each district included in the survey was invited. Almost all either attended or
were represented at the meeting. Each of the corrections that were received have been reviewed
and most of them incorporated in the final report. During each phase of this effort all of the
school districts involved and their employees were most cooperative. Their time and effort in
providing the assistance necessary to complete this study and publish this report is greatly
appreciated.
TABLE OF CONTENTS
Page
I . INTRODUCTION .AN OVERVIEW . . . . . 1
Scope . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Forms . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Seven Target and Five Additional Districts . . 1
Data Collection Methods . . . . . . . . . . . . . . 2
I1 . STUDENT POPULATION . . . . . . . . . . . . . 2
Population Growth . . . . . . . . . . . . . . . . . . 2
Indian Student Population . . . . . . . . . . . . . 7
Dropouts and Population Trends . . . . . . . . 7
Teacher-Parent Contact . . . . . . . . . . . . . . . 10
Vandalism and Other Problems . . . . . . . . . 10
Minority Within a Minority . . . . . . . . . . . . 11
111 . CURRICULUM . . . . . . . . . . . . . . . . . . . . 11
SPECIAL PROGRAMS AND NEEDS . . . . . 11
Arts and Crafts . . . . . . . . . . . . . . . . . . . . 1 1
Communications Skills . . . . . . . . . . . . . . . 17
Agriculture . . . . . . . . . . . . . . . . . . . . . . . 17
Career Education . . . . . . . . . . . . . . . . . . . 17
Post High School . . . . . . . . . . . . . . . . . . . 17
Counseling . . . . . . . . . . . . . . . . . . . . . . . 18
STAFFING . . . . . . . . . . . . . . . . . . . . . . . 18
Ethnic Background of Teachers . . . . . . . . . 18
Non-Teaching Staff . . . . . . . . . . . . . . . . . 18
Teacher Recruitment . . . . . . . . . . . . . . . . 28
Reasons for Leaving . . . . . . . . . . . . . . . . . 28
Teachers in Federal Programs . . . . . . . . . . . 28
Native Language Teacher Aides . . . . . . . . . 30
VII . CAPITAL OUTLAY . . . . . . . . . . . . . . . . . 45
Sacaton's New School . . . . . . . . . . . . . . . . 48
Red Mesa High School . . . . . . . . . . . . . . . 48
Alchesay High School District . . . . . . . . . . 48
Temporary or Relocatable Buildings . . . . . . 48
Age of Facilities . . . . . . . . . . . . . . . . . . . 52
Materials and Construction Costs . . . . . . . . 52
VIII . TEACHER HOUSING . . . . . . . . . . . . . . . 52
IX . SOURCES OF REVENUE . . . . . . . . . . . . . 60
X . GOVERNANCE . . . . . . . . . . . . . . . . . . . . 67
School Board Members . . . . . . . . . . . . . . . 70
Public Participation . . . . . . . . . . . . . . . . . 70
Assimilation . . . . . . . . . . . . . . . . . . . . . . 70
District Reorganization . . . . . . . . . . . . . . . 71
Elementary School Districts Teaching
High School Subjects . . . . . . . . . . . . . . . 71
Federal Relations . . . . . . . . . . . . . . . . . . . 72
State Relations . . . . . . . . . . . . . . . . . . . . 73
Public and BIA Schools . . . . . . . . . . . . . . 76
Self-Determination . . . . . . . . . . . . . . . . . . 77
APPENDIX A .PR OFILES OF THE 12
DISTRICTS . . . . . . . . . . . . . . . . . . . . . . . . . 79
Window Rock . . . . . . . . . . . . . . . . . . . . . 80
Ganado . . . . . . . . . . . . . . . . . . . . . . . . . 80
Chinle . . . . . . . . . . . . . . . . . . . . . . . . . . 81
Tuba City . . . . . . . . . . . . . . . . . . . . . . . . 82
Globe . . . . . . . . . . . . . . . . . . . . . . . . . . . 82
Holbrook . . . . . . . . . . . . . . . . . . . . . . . . 83
Whiteriver . . . . . . . . . . . . . . . . . . . . . . . . 84
V . SCHOOL FINANCING . . . . . . . . . . . . . . . 30 Kayenta . . . . . . . . . . . . . . . . . . . . . . . . . 84
Budget Expenditures . . . . . . . . . . . . . . . . 30 Indian Oasis . . . . . . . . . . . . . . . . . . . . . . 85
Accounting System Requirements . . . . . . . . 30 Marana . . . . . . . . . . . . . . . . . . . . . . . . . . 86
Reporting Requirements . . . . . . . . . . . . . . 37 Eloy . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
Utility Costs . . . . . . . . . . . . . . . . . . . . . . 37 Sacaton . . . . . . . . . . . . . . . . . . . . . . . . . 87
VI . TRANSPORTATION . . . . . . . . . . . . . . . . 3 8 APPENDIX B .N EOLEGICS . . . . . . . . . . . . . . 89
LIST OF TABLES AND FIGURES
TABLES FIGURES
No. Page
Indian Education-Census of Indian
Students . . . . . . . . . . . . . . . . . . . . . . . 3
Student Population . . . . . . . . . . . . . . . . . 5
Indian Reservation Public School District
Enrollment and Johnson-O'Malley
Eligibility . . . . . . . . . . . . . . . . . . . . . . . 8
Elementary School Curriculum Offerings . . . 12
High School Curriculum Summary . . . . . . . 13
High School Curriculum Offerings . . . . . . . 14
Teachers' Years of Service (1973-74) . . . . . 19
Teachers' Years of Service (1974-75) . . . . . 20
Staffing of Reservation Schools
by Ethnic Division (1974-75) . . . . . . . . . 26
Reasons for Teacher Terminations . . . . . . . 29
Total General Fund Expenditures . . . . . . . . 3 1
Budget Expenditures-Totals in
Dollars/Student (1973-74 and 1974-75)
for Administration, Instruction and
All Others . . . . . . . . . . . . . . . . . . . . . . 32
Percent of Total Budget Expended for
Administration, Instruction, and All
Other Expenses (1973-74 and 1974-75) . . 34
Transportation Costs (1973-74 and
1974-75) in Dollars/Student and
Percent of Total Budget . . . . . . . . . . . . . 39
Transportation Costs and Distances
(1974-75) . . . . . . . . . . . . . . . . . . . . . . . 41
Student Transportation 1974-75 . . . . . . . . . 44
Capital Outlay/Student Expenditure
1973-74 and 1974-75 . . . . . . . . . . . . . . . 46
Classrooms-Permanent and Relocatable . . . 49
School Buildings . . . . . . . . . . . . . . . . . . . 53
School Buildings, Designated-Use
Areas-Elementary Schools . . . . . . . . . . . 55
School Buildings-High School
Designated-Use Areas . . . . . . . . . . . . . . . 57
Staff Housing . . . . . . . . . . . . . . . . . . . . . 58
Sources of Funding (1973-74)
Percent of Total Budget . . . . . . . . . . . . . 61
Valuation and Valuation/Student-1973-74 . 64
Valuation and Valuation/Student-1974-75 . 65
District Tax Rates . . . . . . . . . . . . . . . . . . 68
Basic State Aid . . . . . . . . . . . . . . . . . . . . 74
No. Page
1 Indian Education-Census of Indian
Students (1974) . . . . . . . . . . . . . . . . . . 4
2 Student Population (10 Months ADM) . . . . 6
3 Average Daily Membership and
Johnson-O'Malley Eligible
Membership (1974-75) . . . . . . . . . . . . . . 8
4 None
5 None
6 None
7 & Teachers' Years of Service-1973-74
8 and 1974-75 . . . . . . . . . . . . . . . . . . . . . 21
9 Staffing of Reservation Schools
(1974-75) by Ethnic Division . . . . . . . . . 27
10 None
11 None
12 Budget Expenditures-Administration,
Instruction, Transportation,
Capital Outlays, and All
Others, 1974-75 . . . . . . . . . . . . . . . . . . 33
13 Percent of Total Budget Expended for
Administration, Instruction, Trans-portation,
Capital Outlays, and All
Other Expenses, 1974-75 . . . . . . . . . . . . 35
14 Expenditure for Transportation-1974-75 . . 40
15 Transportation 1974-75 . . . . . . . . . . . . . . 42
16 None
17 Expenditure for Capital Outlay-1974-75 . . . 47
18 Total Classrooms-Permanent and
Relocatable . . . . . . . . . . . . . . . . . . . . . 51
19 None
20 None
21 None
22 None
23 Sources of Funding-1973-74 in
Percent of Total . . . . . . . . . . . . . . . . . . 62
24 None
25 Valuation Per ADM-1974-75 . . . . . . . . . . 66
26 District Tax Rates . . . . . . . . . . . . . . . . . . 69
27 Basic State Aid in Dollars Per
ADM-1974-75 . . . . . . . . . . . . . . . . . . . 75
I. INTRODUCTION - AN OVERVIEW
The primary objective of the Economic
Development-School Data Collection Project is to
gather auditable data to assist decision makers in
formulating corrective legislation and/or other actions
as may be required. The resulting report contains data
from within the Department of Education, particularly
the Annual Report of the Superintendent of Public
Instruction, together with that obtained from the
subject school districts. The project has required the
use of both standard and specially designed forms for
collecting additional data as indicated below. The
twelve districts selected for this study include eight
public school districts located entirely on Indian
Reservations consistent with the emphasis of this
project in Indian Education.
Scope
The seven basic areas qf data collection are:
1. Pupil population, by enrollment, attendance and
ethnic classification.
2. Curriculum and Programs. An inventory of course
offerings and identification of those intended to
fulfill specified state board requirements was
obtained from each district. The availability of
special programs; e.g., career, vocational, other
specific needs of each district such as agriculture,
etc. was noted.
3. Staff, including certified and classified positions,
problems relating to ethnic representation,
recruitment and retention have been identified.
4. Budget Expenditures. Total per student cost has
been segregated according to instructional expenses,
administration, transportation, capital outlay and
all other costs.
5. Transportation. Data were collected relating to
total number of students transported, total route
miles, types and ages of buses and other vehicles.
From this, annual cost per pupil and cost per mile
were calculated.
6. Capital Facilities. Information was gathered from
each school site about academic areas, age, size,
and special facilities, particularly staff housing and
relocatable classrooms.
7. School Revenues. These data include funding from
the following sources:
a. The Federal Government under the provisions
of the Johnson-O'Malley Act (P.L. 73-1 67),
Impact Area Aid (P.L. 81-874 and
P.L. 81-815);
b. The State of Arizona, including both general
assistance and categorical or special programs
such as Career Education, Special Education,
etc.;
c. County Aid; and
d. Local effort. Property valuation and tax rate
history are included.
Where the data is of a temporal nature and available,
three separate groupings will be made:
a. 1973-74 actual budget expenditures;
b. 1974-75 approved budgets and the adjustments;
c. 1975-76 adopted budgets.
Forms
To accomplish the goals of this study, it has been
necessary to develop and pilot the use of specially
developed forms. It is anticipated that subsequent to
this effort, a similar program may be extended into a
state-wide data collection effort in the areas of
facilities, curriculum, and transportation. In the
curriculum area, the recently published United States
Office of Education Handbook VI-Curriculum Guides
has been followed. The guide codifies each course and
allows for computerization. This effort has provided a
list of the courses being offered in each district.
There are presently no guidelines with respect to
facilities inventories or accepted standards of adequacy.
Listings have been made of the available academic
space, its age and its utilization for special purposes.
As with the curriculum inventory, it is anticipated that
the state may adopt a similar system or use the
product generated by this project as a guide to
gathering a state-wide inventory. All forms are being
designed for computer entry and analysis.
Seven Target and Five Additional Districts
This project included seven public school districts
primarily serving Indian students. They are Chinle,
Ganado, Window Rock, Tuba City, Kayenta
(Monument Valley), Whiteriver (Alchesay), and
Sacaton. The contract required the selection of five
other similarly situated school districts. They are
similar in size, both by population (elementary-high
school district combinations between 1500 and 3200
students, and an elementary district between 850 and
1200 students), and geographic area. The dissimilarities
between reservation and major urban and suburban
districts eliminated the possible selection of districts in
such high population density areas as Phoenix, Tucson,
and surrounding vicinities.
The target districts as stated in the contract are:
Apache County ' Window Rock, Ganado, Chinle
Coconino County Tuba City
Navajo County Kayenta, Whiteriver
Pinal County Sacaton
The five other districts are:
Gila County Globe
Navajo County . Holbrook
Pima County . Indian Oasis, Marana
Pinal County . Eloy
Data Collection Methods
The Department of Education and Neolegics have
worked closely with personnel in each participating
district. Visits were scheduled to each district to obtain
on-site information. District personnel were most
cooperative in verifying data and completing the forms.
Contributions by staff, members of the advisory council,
school board members, and patrons have provided
important inputs. This assistance has helped to assure
the accuracy of the data and to define the critical areas.
This report has been designed to summarize the factual
data from each district with a minimum of specific
policy recommendations. Similarly, the photographs
have been selected as a form of information to
illustrate the available facilities. Graphic displays have
been designed to present the facts without bias or
value judgments. The report, however, highlights the
problem areas and presents data to enable decisions
and recommendations to be made.
Building Trades and Wood Shop, Alchesay High
School, Whiteriver District. Training in the building
trades prepares students for gainful employment.
Vocational and career education programs are being
stressed in reservation high schools in addition to the
complete academic offering directed toward
preparation for post high school, college and university
training.
Population Growth
Attendance in Arizona's public schools has leveled
off. High school attendance is increasing modestly
while the number of elementary school students is
declining. On the Indian Reservation enrollments
continue to grow disproportionately in both
elementary and, particularly, in high schools. Five
major factors contributing to this growth
are: (1) The birth rate on the reservation has not
declined nearly so much as among other segments of
our population.1 (2) Many of the tribes have adopted
mandatory school attendance laws for all reservation
children. The resolutions allow free choice between
BIA, public and mission or private schools. Although
such a Navajo Tribal edict was enacted in 1947 and
Papago in 1951, the rules were initially difficult to
enforce. Popular support in recent years is now
contributing to the attendance increases. In 1967, the
Navajo Tribal Council passed a further resolution
which specifically favored public school attendance in
1961.~ (3) The roads are being steadily improved,
particularly on the vast Papago and Navajo
reservations. (4) There is a slowly changing attitude
among the older Indian population which is
encouraging increased attendance in the public schools.
(5) More Indian parents are opting to have their
children attend public schools in preference to either
Bureau of Indian Affairs (BIA) schools or missionary
schools where attendance is decreasing (Table I).*
Over 50 percent of all Indian students now attend
public schools on the Navajo Reservation, over
60 percent on the other Arizona Reservations. This
compares with a national average of over 65 percent
in public schools. Most of the others attend BIA
boarding schools and a smaller number ranging
from 10 to 20 percent are enrolled in mission,
private and tribally operated schools. The data in
Table 1 show conformance with this pattern in
both the areas of responsibility of the BIA Phoenix
and Navajo offices except in the category of "Other"
which includes increasing attendance in higher
educational institutions.
The population of each of the districts included in this
survey has been tabulated in Table 2 and plotted as
bar graphs in Figure 2. Data for each school year are
'census data reported by the Navajo Tribal Council
year-to-year comparisons.
'~esolution No. CAU43-61 Navajo Tribal Resolution
establishing Navajo Education Policy.
*Advisory Committee Member Dillon Platero, Navajo Division
of Education, disagrees with this conclusion and observes
". . . . For example, St. Michael's enrollment increases each
year."
Table I
INDIAN EDUCATION - CENSUS OF INDIAN^ STUDENTS
Bureau of Indian Affairs (BIA)
1971 other2 Schools
Public Schools
BIA Schools
1972 other2 Schools
Public Schools
BIA Schools
1973 other2 Schools
Public Schools,
BIA Schools
1974 other2 Schools
Public Schools
BIA Schools
Total (National) Navajo Office Phoenix Office
'The definition of "Indian" as established by Law includes at least 25% as verified in enrollment data. The
national total includes all identified eligible Indian children attending school. Between 3% and 40% of each
figure represents students over 18 years of age. The largest percentage is higher education students in trade
schools, community and four-year colleges (included in "Other Schools"). The Navajo Office includes the
entire Navajo Reservation, parts of which are in Arizona, New Mexico, and Utah. The Phoenix Office has
responsibility for all Arizona Reservations except Navajo, as well as boarding schools at Stewart, Nevada
(Stewart School) and Riverside, California (Sherman Indian High School).
20ther schools include mission and private schools, some of which are operated by private agencies and the
tribes themselves.
Source: Reports of United States Department of Interior, Bureau of Indian Affairs, Office of Education
Programs, Statistics Concerning Indian Education, Fiscal Years 1971, 1972, 1973, and 1974.
Figure 1
INDIAN EDUCATION - CENSUS OF INDIAN STUDENTS (1974)
TOTAL (National)
Legend :
NAVAJO OFFICE PHOENIX OFFICE
Table 2
STUDENT POPULATION
10 mos. - Average Daily Membership (ADM)
Including Resident Total, State Aid and Non-State Aid Students
Window Rock EL 1,579 1,650~ 1,707 1,717
Window Rock THS 495 5001 506 485
Ganado EL
Ganado THS
Chinle EL
Chinle THS
Tuba City EL 1,140 1,311 1,395 1,444
Tuba City HS 391 478 47 1 5 34
Globe EL
Globe HS
Holbrook EL
Holbrook HS
Whiteriver EL
Alchesay HS
Kayenta EL 795 897 84 1 920
Monument Valley HS 287 348 39 1 467
Indian Oasis EL 648 684l 695 705
Indian Oasis THS 178 189' 195 20 1
Marana EL
Marana HS
Eloy EL 1,472 1,487 1,461 1,478
Sacaton EL 584 733 734 774
EL - Elementary School grades K-8
THS - Teaching High School subjects, but operated by an Elementary School District
HS - High School
'EL and THS (not listed separately) derived from total population
Source: Reports of the Superintendent of Public Instruction
Figure 2
Legend:
High School or
Teaching High School
STUDENT POPULATION (10 Months ADM)
Resident Total, State Aid and Non-State Aid
Widow Rock Elementary School Ganado Elementary School
and Teaching High School and Teaching High School
3000 3000
Tuba City Elementary School Globe Elementary School
and High School and High School
3000 3000
Whiteriver Elementary School
and Alchesay High School
2500
2000
Kayenta Elementary School and
Monument Valley High School
2500
2000
Marana Elementary School
and Teaching High School Eloy Elementary School
3000 3000
Elementary
School
Chinle Elementary School
and Teaching High School
Holbrook Elementary School
and High School
3 500
3000
Indian Oasis Elementary School
and Teaching High School
4500 1 I
*Elementary School and Teaching High School (not listed separately) derived from total
Sacaton Elementary School
population.
4500
4000
3500
3000
2500
2000
1500
-
- -
-
- -
included since 1970-71. Some of the data were
adjusted to reflect changes in student counting
methods from average daily attendance (ADA) to
average daily membership (ADM) now in use. Each of
the districts on the Indian Reservation shows a growth
characteristic between the beginning and end of this
period. The only district showing a population decrease
is Holbrook. The largest increases have occurred in
Chinle, Tuba City and Marana. Some of this growth
can be attributed to new or improved facilities.
Forty-eight high school students from southern Utah's
San Juan County School District are attending
Monument Valley High School between thirty and
fifty miles away. Based on a long-standing agreement,
San Juan district is paying $1000 as tuition for each of
these students. The actual district cost is now over
$3000/pupil; hence Kayenta's trustees have requested
either the San Juan District or Bureau of Indian
Affairs to make up the difference between tuition
payments and the district's cost.
Sacaton's growth can be attributed largely to the
phase-out and transfer of BIA school facilities to the
public school system. The most stable districts in the
survey have been Eloy and Globe. Each of these
communities has been very stable with only minimal
year-to-year population changes. Note that the
month-to-month fluctuation at Eloy resulting from the
enrollment of migrant farm workers' children is
substantial and a regular annual occurrence.
Kayenta Union High School is located in a building
complex with Kayenta elementary school and is
60 percent temporary and relocatable classrooms. Built
in 1960, this is one of the newer structures in the
overcrowded facilities. Kayenta's remote Navajo
Reservation location is the cause of many higher cost
factors as compared to other districts.
Indian Student Population
Table 3 shows the total enrollment, average daily
memb er ship (ADM), eligible Johnson-O'Malley
enrollment, and Johnson-O'Malley average daily
membership for 1973-74 and 1974-75 years. These
data, obtained from the Division of Indian Education,
State Department of Education, indicate the difference
between the Indian students' enrollment and
attendance. The state average difference between
enrollment and attendance is about 6 percent to
7 percent.
Dropouts and Population Trends
The high percentage of dropouts among Indians,
particularly at the high school level, continues to be a
major problem. In recent years retention rates have
been improving and increasing numbers have been
graduating. Several districts are making major efforts to
assure maximum attendance. Full time attendance
officers are employed. Some of these operate in
radio-controlled cars to investigate student absences
and thus they minhnize truancy and assure compliance
of the law requiring attendance of school age children.
The trend is clearly evident toward increased public
school attendance. The improved highway system and
appreciation of education are expected to continue to
increase the total attendance. A congressionally
ordered study of Indian Education revealed the
following characteristic^:^
"1) Dropout rate of Indians are twice the national
average ;
"2) Level of educational achievement of Indian
children is half the national average;
"3) Achievement levels and test scores are far
below those of their non-Indian counter-parts;
and
"4) The Indian child falls progressively behind the
longer he stays in school."
Although the basic statements are still essentially true,
several districts in this survey reported that during the
last five years, improvements with respect to each of
these characteristics have been reali~ed.~
'special Sub-committee on Indian Education (196769).
Senate of the United States.
4~ayenta School District No. 27. Johnson-O'Malley Funding
Request for 1975-76.
Table 3
INDIAN RESERVATION PUBLIC SCHOOL DISTRICT ENROLLMENT
AND JOHNSON-O'MALLEY ELIGIBILITY
'ADA - Average Daily Attendance; ADM - Average Daily Membership. The accounting system was changed from attendance to membership in 1974-75.
Eligibility for Johnson-O'Malley (JOM) funds is limited to Indians at least 25% by bloodlines as established in registration requirements.
Window Rock
Ganado
Chinle
Tuba City Elem.
Tuba City H.S.
Whiteriver
Alchesay H.S.
Kayenta
Monument Valley
Indian Oasis
Sacaton
Source: Annual Report Division of Indian Education, Arizona Department of Education.
1973-74 1974-75
Total Total
Enrollment ADA^
2,417 2,247
1,735 1,422
3,787 2,901
1,674 1,455
789 561
1,349 1,167
394 328
1,053 924
522 475
1,020 913
906 778
Total Total
Enrollment ADM 1
3,092 2,445
1,665 1,461
4,583 4,076
1,813 1,274
1,080 635
1,199 1,086
366 313
1,385 952
578 410
1,141 1,016
948 835
Eligible JOM Eligible
Enrollment JOM ADA^
2,314 2,104
1,363 1,217
3,524 2,963
1,308 1,135
493 361
1,249 1,080
340 280
843 739
327 315
982 879
902 775
Eligible JOM Eligible
Enrollment JOM ADM~
2,80 1 2,380
1,570 1,403
4,301 3,678
1,368 1,181
769 589
1,099 1,005
304 256
1,258 878
522 335
1,015 988
945 830
Figure 3
AVERAGE DAILY MEMBERSHIP AND JOHNSON-O'MALLEY ELIGIBLE MEMBERSHIP
(1 974-75)
ANNUAL REPORT DIVISION OF INDIAN EDUCATION
Legend:
Eligible JOM ADM Non-Eligible
JOM ADM
ADM
Window Rock
Ganado
Chinle
Tuba City Elem.
Tuba City H.S.
Whiteriver
Alchesay H.S.
Kayenta
Monument Valley
Indian Oasis
Sacaton
Side View of Window Rock High School, Fort
Defiance, Arizona, showing the hogan-like cultural
center. The state classifies the district as "Elementary
District Teaching High School subjects-THS". It is
providing a full schedule of programs for over 550
students and has North Central Association
accreditation.
Teacher-Parent Contact
While increasingly, Indian parents are encouraging their
children to attend and complete the public school
program, the students apparently feel an estrangement
between their homes and schools. Most Indian parents
are reported to feel rejected by the school^.^ Having less
education than their children, they are in awe of school
administrators and are hesitant to become involved in
school policy or programs. This attitude contributes to
the lack of communication between Indian parents and
teachers.*
Teachers indicated their reluctance to initiate visits to
their students' homes because of poor receptions.
Occasionally the parents have refused to speak to them
or invite them in. Much of this relates to cultural
differences and an unusually high level of embarrassment
evinced by the parent. Rarely are teachers invited to the
students' homes. Similarly, the parents are reluctant to
visit the classroom or to confer with the teachem6 The
students are faced with this obvious duality and have
Strengthening Navajo Education, Division of Education, The
Navajo Tribe, Window Rock, Arizona, 1973, p. 24.
*Advisory Committee Member Dillon Platero, Navajo Division
of Education, states, "Many parents have been miseducated
by the past mistakes of the schools and have been taught
that they should leave all education to the Anglos. This
concept is still widespread extending to the "fear" caused
by the guidelines calling for the establishment of Parent
Committees and to the unwillingness of the BIA to give any
actual authority to their Advisory Boards."
%he Kayenta Report: Values in Indian Education,
Southwestern Behavioral Institute, Flagstaff, Arizona,
October 1971.
great difficulty in coping with the situation. While
children react to this challenging dichotomy in a
different manner, most often they become reserved,
detached ai~d hesitant to participate in the classroom.
A portion of this difficulty may be traced to the
inability of most teachers to speak or understand the
native language.
Primary Classroom Wing, Ganado School District,
constructed in 1953, shows evidences of hard use.
Almost two-thirds of the elementary grade classes are
conducted in temporary and relocatables. The district's
facilities are all located on a large campus that permits
joint use of many specialized areas. Its Navajo
Reservation location requires the district to include
trailer park and housing facilities for most of its
teaching staff.
Vandalism and Other Problems
In addition to truancy, the reservations have problems
with vandalism. The incompatability of rocks and
window glass seems to be the major area of difficulty.
More expensive plexiglass in place of windows has been
tried. While more resistant, it seems to offer a
challenge which few vandals can resist. Also,
pyromania or arson has been experienced, so far
without extremely serious consequences.
Another problem unique to the Navajo and Papago
reservations is bootlegging. While many of the tribal
councils have outlawed the manufacture or sale of
alcoholic beverages on the reservation, the illicit
production and importation are common practices.
School children appear to have little difficulty in
obtaining alcoholic beverages. Occasionally students
arrive at school in a drunken condition. While this is
much more common in the high school, it has also
occurred with elementary students. Under these
circumstances, attendance officers taking the child
home have sometimes found the parents in a similar
condition. Several school board and administrative
officials on the Navajo Reservation indicated their
belief that Tribal officers are fully aware of the
bootlegging activities but rarely take the action
necessary to enforce their laws.
While tobacco smoking is a problem of considerable
proportion, they reported that there seems to be little
evidence of the drug culture outside of occasional glue
or paint sniffing.*
Minority Within a Minority
Demographically, Tuba City School District has
approximately 90 percent Indian population. The
non-Indians are primarily Anglo, the children of public
school, Federal Agency and private industrial employees.
The Indian constituency is not exclusively Navajo. There
is a Hopi constituency which constitutes approximately
5 to 10 percent of the total school population. Efforts
to teach Navajo cultural history and crafts welcomed by
the majority are obviously and strongly opposed by the
Hopi. The large Anglo minority seems to have less
objection to these programs. One of the five Tuba City
School Board members is Hopi. Members of the Hopi
community still complain that they have no say in the
operation of the district.
The high school curriculum offerings were also collected
during the district visits on a grade-by-grade basis and
compared with the North Central High School
Accreditation reports. Only minor variations between
the two sources of data were digcovered. The differences
occur from insufficient enrollment as well as lack of
qualified teachers for some of the more specialized
elective courses, Some correlations can be obtained by
comparing the course offerings with the summary of
facilities available. Lack of classroom or staff living
facilities more often than funding for teacher salaries or
materials was cited for a district being unable to offer
some desired courses.
The spread of course offerings is relatively narrow as all
districts are trying to offer all basic elementary and high
school courses. The emphasis on Agricultural studies,
Home Economics, and Industrial Arts is apparent among
the reservation schools offerings. According to many of
the administrative officials interviewed, this represents
considerable upgrading over the curriculum offerings on
the reservations during the past 10 to 20 years.*
SPECIAL PROGRAMS AND NEEDS
Reports have been received that Navajo children have
caused incidents by ganging up on members from other
minorities, usually Hopi. School officials contend that
these situations are under control. When the problem
arose, the district assigned additional school personnel,
usually Indian staff members or attendance officers, to
ride the buses. These types of problems are common in
most school districts where similar demographic
differences exist .**
111. CURRICULUM
The curriculum and related programs to be found on
the Indian Reservation are comparable to those found
in other districts in the state. Tables 4 (Elementary), 5
and 6 (High School), constitute a summary of
curriculum offerings by subject in each district. The
elementary. school data were gathered during the visits
to each of the districts. The subject identification and
internal coding is, as nearly as possible, in accordance
with Handbook VI - Cum.culum Guides as established
by the United States Office of Education (1974),
which is suitable for computer application.
*Advisory Committee Member DiUon Platero, Navajo Division
of Education comments, ". . .The situation on the Navajo
Reservation . . . glue sniffing and paint sniffing is rampant."
**Ibid.-Mr. Platero, "Have the Tuba City incidents continued
at much the same rate over the years or are they related to
fluctuations in Navajo-Hopi land dispute problems? Is there
any relation between these incidents and the desire of the
Hopi people to have their own high school. . . . ?"
Arts and Crafts Building, Indian Oasis School District,
houses a most popular program. When related to native
arts and crafts, adult educatiop programs are
enthusiastically received in most reservation public
schools. Weaving, bead work and jewelry-making with
their specific cultural orientation join art, painting and
sculpting in both elementary and high school curricula.
Arts and Crafts
Most reservation district schools, particularly at the high
school level, are also featuring culturally oriented
*Ibid-Mr. Platero, ". . . .The list of course offerings fails to
indicate problems that often vitally affect Indian students.
Where can many of them expect to find the money required
to participate in what the State of Arizona calls a 'free
public education' when the cost of textbooks, lab fees,
instrumental rentals are exorbitant to those students?"
Table 4
ELEMENTARY SCHOOL
CURRICULUM OFFERINGS
02.00.00 ART X X X X X X X X X X X X
06.00.00 ENGLISH LANGUAGE ARTS X X X X X X X X X X
05.01 .O1 Reading X X X X X X X X X X X X
05.01.05 Remedial Reading X X X X X X X X X X X
05.0 1.02 Handwriting X X X X X X X X X X X X
05.01.03 Spelling X X X X X X X X X X X X
05.02.02 Grammar X X X X X X X X X X X X
05.03.00 Literature X X X X X X X X
05.04.00 Composition X X X X X X X X X X
05.05 .OO Journalism X X
06.07.00 English, as second lang. X X X X X X X X X
05.99.00 Other English - Speech X X X X
06.00.00 FOREIGN LANGUAGE - Navajo X
06.02.00 FOREIGN LANGUAGE - Spanish X X X X
08.00.00 HEALTH, SAFETY, PHY. ED X X X X X X X
08.01 .OO Health X X X X X X X X X X X
08.01.08 Drug"s and Narcotics Abuse X X X X X X X X
08.03.00 Physical Education X X X X X X X X X
08.03.01 Gymnastics X X
2 1.02.00 Safety Education X X X X X X
09.00.00 HOME ECONOMICS X X X X X X X X X X X X
10.00.00 INDUSTRIAL ARTS X X X X X X X X X X X X
1 1.00.00 MATHEMATICS X X X
11.02.00 Arithmetic X X X X X X X X X X X X
11.1 1.00 General Math X X X X X X X
12.00.00 MUSIC X X X X
12.04.00 Vocal Music X X X X X X X X X X X X
12.05.00 Instrumental Music X X X X X X
12.05.01 Band X X X X X X X X X X X
12.99.00 Other Music (specify)
12.99.01 Dance X X X
12.99.02 Rhythm X
12.99.03 Guitar X X X
13.00.00 NATURAL SCIENCES X X X X X X X X X X X X
15.00.00 SOCIAL SCIENCES/
SOCIAL STUDIES X X X X X X X X X X X X
15.1 1.01 Government X X X X X X
15.03.01 Free Enterprise
15.99.00 Other Soc. Studies
History/Geography X X X
99.00.00 OTHER SUBJECTS OFFERED
BUT NOT LISTED
99.01 .OO Navaio Arts & Crafts X X
"
99.03.00 Career Ed. X
Source: Information from each District
Table 5
CODE SUBJECT
HIGH SCHOOL
CURRICULUM SUMMARY
01.00.00 Agriculture X X X X X X X X
02.00.00 Art X X X X X X X X X X
03.00.00 Business X X X X X X X X X X
04.00.00 Distributive Education X X X X
05.00.00 English Language Arts X X X X X X X X X X
06.00.00 Foreign Language X X X X X X X X X X
08.00.00 Health/Physical Ed. X X X X X X X X X X
09.00.00 Home Economics X X X X X X X X X X
10.00.00 Industrial Arts X X X X X X X X X X
1 1.00.00 Mathematics X X X X X X X X X X
12.00.00 Music X X X X X X X X X X
13.00.00 Natural Sciences X X X X X X X X X X
15.00.00 Social Sciences X X X X X X X X X X
15.09.00 Humanities X X X
Sources: Information from each District; Northcentral Association Accreditation Reports.
CODE SUBJECT
Table 6, page 1
HIGH SCHOOL
CURRICULUM OFFERINGS
01.00.00 AGRICULTURE
01 .O1 .O1 Animal Science X X X X X X
01 .01.02 Plant Science X X X X X X
01.03.00 Ag. Mechanics X X X X X X
01.99.00 Other Ag (specify)
Vocational Ag. X X X X X X
02.00.00 ART
02.01.00 Art History and Theory X X X X
02.02.01 Design X X X X X X X X
02.02.05 Drawing X X X X X X X
02.02.06 Painting X X X X X X X
02.99.00 Other Art (specify)
Crafts X X X X X X X
03.00.00 BUSINESS
03.01.00 Accounting X X
03.03.00 Bookkeeping X X X X X X X X
03.05.00 Business Math X X X X X X X
03.06.00 Business Communications X X X X X
03.09.00 Business Law X X X
03.10.00 Business Machines X X X X X X X
03.14.00 Clerical Practice X X X X X
03.17.00 Data Processing and
Computer Operation X X
03.34.00 Shorthand X X X X X X X X X
03.34.09 Secretarial Practice X X X X X X
03.35.00 Typing X X X X X X X X X X
03.99.00 Other Business (specify)
Office Procedures X X X X
05.00.00 ENGLISH LANGUAGE ARTS
05.01 .O1 Reading X X X X X X X X
05.02.02 Grammar X X X
05.03.00 Literature X X X X X X X X
05.03.37 Drama X X X X X X X X
05.04.00 Composition X X X X X X
05.04.02 Writing X X X X X X
05.04.03 Journalism X X X X X X X X X
05.05.00 Speech X X X X X X X X X X
06.07.00 Enghsh, as second lang. X X
05 -99.00 Other English (specify)
~ i n e m a / ~~.r~od.u ction X X
05.99.01 Debate X
Table 6, page 2
HIGH SCHOOL
CURRICULUM OFFERINGS
s A
0
d
5 0 'E
CODE SUBJECT
06.00.00 FOREIGN LANGUAGE
06.01.05 Latin
06.02.08 French X X
06.02.09 German X
06.02.1 8 Russian
06.02.19 Spanish X X X X X X X X X X
06.99.00 Other Foreign Language
(specify) - Navajo X
08.00.00 HEALTH, SAFETY, PHYSICAL ED.
08.01.00 Health X X X X X X X X X X
08.01.08 Drugs and Narcotics Abuse X X X
08.03.00 Phvsical Education X X X X X X X X X X
3-.1 - -.-0 1- ..M- -I -D -r i-v e- r- E-d -u -c - a-t -i-o - n-- X X X X X X X X X X
21.02.00 Safety Education X X X
08.99.00 Other Health, etc. (specify)
Weight Training X X
09.00.00 HOME ECONOMICS
09.01.02 Child Development X X X X X X X X
09.01.03 Clothing/Textiles X X X X X X X X
09.01.06 Family Living X X X X X X X
09.01.07 Nutrition/Food Preparation X X X X X X
09.01.08 Home Management X X X X X X X
09.99.00 Other Home Ec. (specify)
Cosmetology X X
10.00.00 INDUSTRIAL ARTS
10.03.03 Drafting X X X X X X
10.03.07 Mechanical Drawing X X X X X X
10.04.00 Electricity/Electronics X
10.07 .OO Graphic Arts X X X X
10.14.00 Metals X X X X X X X X
10.1 5.00 Plastics
10.1 6.00 Automotive X X X X X X X X X
10.1 9.00 Woods X X X X X X x X X
17.03.00 Trade & Ind. Occupations
(specify) - Welding X X X X X X X X
10.99.00 Other Ind. Arts (specify)
World of Work X X X X X
1 1.00.00 MATHEMATICS
11.03.00 Algebra X X X X X X X X X X
11.06.00 Calculus X X X X X
1 1.1 1 .OO General Math X X X X X X X X X
1 1.12.00 Geometry X X X X X X X X X X
11.16.00 Trigonometry X X X X X X
1 1.99.00 Other Math (specify)
Consumer Math X X X
Table 6, page 3
HIGH SCHOOL
CURRICULUM OFFERINGS
CODE SUBJECT
12.00.00 MUSIC
12.04.00 Vocal Music X X X X X X X X X X
12.05.00 Instrumental Music X X X X X X X X X
12.05.01 Band X X X X X X X X X X
12.05.02 Orchestra X
12.99.00 Other Music (specify)
History X
13.00.00 NATURAL SCIENCES
13.02.00 Biology X X X X X X X X X X
13.03.01 Chemistry X X X X X X X X X X
13.03.02 Physics X X X X X X X X X
13.03.1 1 Geology X X X
13.03.12 Physical Science X X X X X X X X X
13.04.00 Earth/Space Science X X X X X X X X
15.00.00 SOCIAL SCIENCES/SOC. STUDIES
15.02.02 History: Southwest
History: United States X X X X
15.03.00 Citizenship/Civics X X X
15.03.01 Free Enterprise X X X X X X X X X X
15.08.01 History: American X X X X X X X X X X
15.08.04 History: Arizona X X X X X
15.08.09 History: World X X X X X X X X X
15.1 1 .O1 Government/Constitution X X X X X X X X X
15.99.00 Other Social Studies
(specify) - Navajo X X X X
15.99.01 Anthropology X
15.09.00 HUMANITIES
(specify) - Social Problems X X
99.99.00 OTHER SUBJECTS OFFERED BUT
NOT LISTED ABOVE (specify)
99.99.01 OTHER - Voc. Building Trades X X X X X X X
99.99.02 OTHER - Economics .X- -X -
99.99.03 OTHER - Geography X X X -X
99.99.04 OTHER - ROTC X
99.99.05 OTHER - Library Sciences X X
99.99.06 OTHER - Radio & T .V. Repair X
99.99.07 OTHER - Home Repair X X
99.99.08 OTHER - Greenhouse/Rydroponics X
Sources: Information from each District; Northcentral Association Accreditation Reports
programs both as a result of federal funding and high
levels of local interest. These native history and culture
and arts and crafts courses are very popular not only
with the students but also with the adult population.
The arts and crafts activities are also proving to be
practical and profitable. The increasing national
demand for authentic Indian jewelry is enhancing the
career potential in this area.
Communications Skills
Many reservation children entering school have had no
experience with English communication, and problems
are apparent through all grade levek7 Minimal
availability of public libraries, radio and television
contribute to the extensiveness of the language
difficulties. Programs necessitated by these language
differences are being offered extensively. These are
financed primarily through special federal funding and
to a lesser extent by the state bilingual programs. A
major difficulty has been the hiring of certified
personnel who are also conversant with the Indian
languages. This problem has been partially solved by
hiring aides at the lower grade levels many of whom
are mothers of children attending the school.
Black Angus Cattle from the Livestock and
Agricultural program at Monument Valley High School,
Kayenta School District. In addition to beef
production, other types of livestock included in the
program extend to sheep, horses and numerous forms
of fowl. In the background, cultivated fields of various
grains and grasses provide opportunities for practical
training in other aspects of agriculture.
Agriculture
Most reservation high school districts have extensive
agricultural training programs and sponsor Future
The Kayenta Report: Values in Indian Education,
Southwestern Behavioral Institute, Flagstaff, Arizona,
October 1971.
Farmers of America (FFA) chapters. Cattle breeding,
dairy procedures, crop improvements and farm
innovations are being taught. Several schools are
conducting experimental farming and livestock
operations. New crops are being evaluated for
reservation farming. Baboquivari High School, Indian
Oasis District, is working closely with the University of
Arizona, Agricultural School, in the development of high
grade oil producing Jojoba bean cultivation. This project
has received national attention.
Career Education
The recent emphasis at the state level in career and
vocational education is readily apparent in its
implementation at reservation schools. Unfortunately,
jobs are not available on the reservation. Thus, the result
of this education and training is not yet reflected in
profitable reservation employment. In a state of almost
perpetual depression, the unemployment and substantial
under-employment levels in many reservation areas
ranges from 50 to over 85 percent.8 A 64 percent rate
was shown for the entire Navajo Reservation in 1972. A
very high tribal priority is the development of the
commercial and industrial base to absorb their residents
in gainful employment. Both tax and cultural
considerations make the progress very slow. Many
Indians are faced with the choice of unemployment or
of leaving the reservation for urban areas where more job
opportunities exist.
Post High School
In the early grades, the reservation school districts are
providing curriculum designed for entrance into high
school and college. Emphasis is being placed on basic
skills-English, particularly reading and mathematics. A
vast majority (96%) of the total number of parents (540)
included in the Kayenta Report want their children to
have more than a high school e d ~ c a t i o n . ~
Increasing numbers of reservation high school graduates
are attending institutions of higher education. While the
drop-out rate is particularly high during the first and
second year of college, more are completing degree
programs. All of the high schools visited during this
investigation were certified to meet the North Central
Accreditation criteria which helps to assure college
entrance. The tribes are funding extensive scholarship
programs which, in conjunction with federal assistance
programs, assure that qualified students have the
opportunity to continue their education. During fiscal
8~conomicS tatistics Relating to Indian Reservations, Bureau
of Indian Affairs, Department of Interior, 1972.
%he Kayenta Report: Values in Indian Education,
Southwestern Behavioral Institute, Flagstaff, Arizona,
October 1971.
1975, the BIA funded over 1800 Navajo College
student scholarships through the Tribal ~ouncil."
Students are attending all three Arizona universities,
many community colleges, and some are matriculating
out of state.
Counseling
The high schools are instituting both counseling and
curricula improvement programs designed to enhance
their graduates' chances -of succeeding in college and
university programs. School board members and
parents feel the need to have career counseling more
readily available in the reservation high schools. They
are generally disappointed that trained counselors who
are themselves Indians are not available for this high
priority work. Plaudits for the State Career Education
Program were heard in many districts. State
Department of Education personnel involved with this
activity were reported to be working closely with the
districts and were more in evidence on the campuses
than all other state department personnel.
IV. STAFFING
Teacher salary scales in predominantly Indian
Reservation schools are comparable with, or slightly
lower than, the state average of starting salaries. They
are approximately comparable to those in the urban
'districts, lower than suburban school districts and
higher than many rural districts. The average salary for
the reservation teacher is considerably below the
average of most other districts because of the difficulty
in retaining teachers. Salaries remain at the lower levels
of the pay scale. As indicated, in Tables 7 and 8 (also
Figure 7), the reservation districts have a much larger
proportion of beginning, one- and two-year teachers.
From these data, turnover rates can be deduced by
subtracting the new teachers employed to
accommodate growth. The annual turnover rates range
from a low of 15 to a high of over 40 percent per
year. Consequently, the reservation school districts
have disproportionately large numbers of teachers with
a small number of years of experience, as compared to
Marana, Globe, and Holbrook districts.
Data relating to teacher retention were obtained by
comparing annual certification and classifidation
records maintained by the Department of ducati ion
(Table 7-for 1973-74; and Table 8-for 1974-75).
The data show both the number of teachers with the
number of years of teachmg experience, not all of
which was necessarily accumulated in the subject
'%eport of the Tribal Education Committee, Navajo Tribal
Council, Many Farms, Arizona, December 1974.
district. Figure 7 employs bar charts and graphics
presentations to give perspective to these data.
Ethnic Background of Teachers
The ethnic background of teachers on reservation
schools ranges from 85 to 90 percent Anglo, 5 percent
other minority groups, and 10 percent Native American
(Table 9). Despite the large effort to train and recruit
Indian teachers, the year-to-year change in staffing
patterns, with regard to certified Indian teachers,
shows very small improvements. While the tribes are
very supportive of training Indians to become
teachers,'' the public school system has great difficulty
in retaining such personnel. The higher salaries offered
by BIA schools and the availability of jobs in federal
programs as interpreters or teachers draw many of
these persons away from the public school^.'^ Many of
the Indian teachers prefer urban living rather than
returning to the reservation to work. Several have
complained that they cannot get professional
recognition on the reservation close to their own
homes. Rather, they are treated as junior family
members and are expected to contribute their entire
earnings to the family's support. Chinle has recently
instituted a bonus program of additional pay for
qualified staff members who are bilingual. Increasingly,
the districts are using bilingual aides in the classroom
at the lower grade levels.
Many Indian parents do not believe that Indian
teachers as a general rule would be the most desirable
for their children.13 Contrarywise, many more parents
indicated their belief that the teachers should be
conversant with the native language. Most of these
same parents were favorably disposed toward having
their children become teachers.
Non-Teaching Staff
Conversely, other staffing positions such as
maintenance, bus drivers, food service, etc., average
over 90 percent Indian. The acute..housing shortage
causes the heavy reliance on Indian employees. Several
administrators complained of the need to accept
minimally or inadequately trained staff members for this
reason.
'bverview of Indian Affairs, Arizona Legislative Council,
1972.
n ' ~ h e starting salary for any teacher in the BIA system is
$12,167. . . . ," The Navajo Nation: An American Colony,
United States Commission on Civil Rights, September 1975.
I3~he Kayenta Report: Values in Indian Education,
Southwestern Behavioral Institute, Flagstaff, Arizona,
October 1971.
Table 7
TEACHERS' YEARS OF SERVICE (1973-74)
(Number and Percentage of Certified Personnel With
Years of Experience in Each District)
Window Rock Elementary
Ganado Elementary
Chinle Elementary
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
Holbrook High School
Whiteriver Elementary
Alchesay High School
Kayenta Elementary
Monument Valley HS
Indian Oasis Elementary
Marana Elementary
Marana High School
Eloy Elementary
Sacaton Elementary
0 years 1 year 2years 3 years 4years 5 years 6 years 7 years 8 years 9 years 10 years 15 years 20 years 20+ years
% No. % No. % No. % No. % No. % No. % No. % No. % No. % No. % No. % No. % No. % No.
Table 8
TEACHERS' YEARS OF SERVICE (1974-75)
(Number and Percentage of Certified Personnel With
Years of Experience in Each District)
Window Rock Elementary
Ganado Elementary
Chinle Elementary
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
Holbrook High School
Whiteriver Elementary
Alchesay High School
Kayenta Elementary
Monument Valley HS
Indian Oasis Elementary
Marana Elementary
Marana High School
Eloy Elementary
Sacaton Elementary
0 Y=
% No.
28.7 42
2.3 2
37.2 58
14.6 12
34.9 15
___.__
--- --
1.7 1
-- --
4.1 2
4.3 1
16.6 9
--- ---
9.7 4
16.0 13
23.2 10
19.1 13
12.1 5
1 Year
% No.
24.6 36
24.1 21
10.9 17
36.6 30
23.3 10
9.4 5
12.5 5
1.7 1
36.4 12
10.2 5
30.4 7
27.7 15
4.1 1
24.3 10
9.9 8
37.2 16
19.1 13
12.1 5
2 years
% No.
12.3 18
14.9 13
14.1 22
2.4 2
2.3 1
9.4 5
12.5 5
11.9 7
--- ---
24.5 12
17.4 4
22.2 12
50.0 12
17.0 7
22.2 18
6.9 3
10.3 7
14.6 6
3 years
% No.
10.3 15
10.3 9
7.7 12
7.3 6
4.6 2
9.4 5
--- .--
10.2 6
3.0 1
16.3 8
--- ---
11.1 6
16.6 4
17.0 7
14.8 12
4.6 2
7.3 5
17.0 7
4 years
% No.
4.1 6
3.4 3
10.9 17
8.5 7
2.3 1
13.2 7
12.5 5
15.3 9
3.0 1
6.1 3
13.0 3
7.4 4
4.1 1
7.3 3
4.9 4
6.9 3
2.9 2
26.8 11
5 years
% No.
6.8 10
10.3 9
5.8 9
6.1 5
9.3 4
--- ---
5.0 2
6.8 4
3.0 1
4.1 2
8.7 2
5.5 3
8.3 2
4.8 2
6.1 5
2.3 1
2.9 2
2.4 1
6 years
% No.
4.1 6
10.3 9
3.8 6
7 years
% No.
2.1 3
8.1 7
8 years
% No.
.7 1
--- --.
.6 1
8.5 7
4.6 2
3.8 2
7.5 3
1.7 1
9.1 3
2.1 1
--- ---
3.7 2
4.1 1
7.3 3
2.4 2
4.6 2
2.9 2
9 years
% No.
2.9 3
6.9 6
10 years
% No.
.7 1
--- ---
1.3 2
2.4 2
4.6 2
--- ---
--- -.-
1.7 1
--- --.
2.1 1
4.3 1
1.8 1
--- ---
--- ---
.-. ---
--- .-.
--- ---
--- ---
15 years
% No.
1.4 2
5.7 5
4.5 7
3.6 3
2.3 1
20.8 11
5.0 2
13.5 8
9.1 3
10.2 5
13.0 3
1.8 1
8.3 2
--- .-.
8.6 7
9.3 4
11.8 8
.-- ---
20 years
% No.
1.4 2
3.4 3
1.3 2
--- ---
2.3 1
3.8 2
25.0 10
11.9 7
9.1 3
6.1 3
--- ---
--- ---
--- --
--- ---
6.1 5
--- ---
7.3 5
--- ---
2W years
% No.
From Department of Education.Rewrds
Figures 7 and 8
TEACHERS'YEARS OF SERVICE - 1973-74 and 1974-75
(Percentage of Certified Personnel With Years of Experience in Each District)
NOTE: Bar graphs represent percentage of personnel with X years of experience in each
district; line graph represents percentage of certified personnel with MINIMUM of
X years of experience in each district.
Window Rock Elementary
Years of Experience
- - - -
Years of Experience
1974-75
Ganado Elementary
Years of Experience
1973-74
Chinle Elementary
. . - -
Years of Experience
1973-74
- - - -
Years of Experience
1974-75
Years of Experience
1974-75
Tuba City Elementary
0 1 2 3 4 5 6 7 8 9 1 0 1 5 2 0 2 G
Years of Experience
1973-74
Tuba City High School
0 1 2 3 4 5 6 7 8 9 10152020t
Years of Experience
Years of Experience
1973-74
Years of Experience
1973-74
" 0 1 2 3 4 5 6 7 8 9 10152020+
Years of Experience
- - - - ~ -
Years of Experience
1974-75
Globe Elementary
Years of Experience
1974-75
Globe High School
-
0 1 2 3 4 5 6 7 8 9 10152020t
Years of Experience
Holbrook Elementary
0 1 2 3 4 5 6 7 8 9 1 0 1 5 2 0 2 0 t
Years of Experience
1973-74
Years of Experience
1974-75
Holbrook High School
" 0 1 2 3 4 5 6 7 8 9 1 0 1 5 2 0 2 0 t
Years of Experience
1973-74
Years of Experience
1974-75
Whiteriver Elementary
Years of Experience
1973-74
Alchesay High School
Years of Experience
1974-75
Years of Experience
1973-74
Years of Experience
1974-75
Kayenta Elementary
0 1 2 3 4 5 6 7 8 9 10152020t 0 1 2 3 4 5 6 7 8 9 1015202Oc
Years of Experience
1973-74
Monument Valley High School
Years of Experience
1973-74
Indian Oasis Elementary
" 0 1 2 3 4 5 6 7 8 9 10152020t
Years of Experience
1973-74
Marana Elementary
Years of Experience
1974-75
Years of E:\prric~icc
1973-74
Years of Experience
Years of Experience
Years of Experience
1974-75
Marana Hi-gh School
0 1 2 3 4 5 6 7 8 9 1 0 1 5 2 0 2 D t 0 1 2 3 4 5 6 7 8 9 1 0 1 5 2 0 2 D t
Years of Experience Years of Evper~ence
Years of Experience
1973-74
1974-75
Eloy Elementary
Years of Experience
1974-75
Sacat on Elementary
Years of Experience
1973-74
Years of Experience
1974-75
Table 9
STAFFING OF RESERVATION SCHOOLS BY ETHNIC DMSION (1974-75)
Indian Non-Indi~q
Classified Certified Classified Certified
No. % No. % No. % No. %
Window Rock Elementary 148 91.9 25 20.5 13 8.1 97 79.5
High School
Ganado Elementary
High School
Chinle Elementary
High School
Tuba City Elementary
High School
Whiteriver Elementary
Alchesay High School
Kayenta Elementary
Monument Valley High School 19 76.0 1 3.7 6 24.0 26 96.3
Indian Oasis Elementary 51 91.1 1 2.6 5 8.9 38 97.4
High School 5 100.0 0 0.0 0 0.0 11 100.0
Sacaton Elementary 48 90.6 6 12.0 5 9.4 44 88.0
The total of all employees in each district categorized as either certified (holding an Arizona Teacher's
Certificate) or classified employees. They were then identified as being Indian or not. The non-Indian group is
almost all Anglo.
Source: State Department of Education
Figure 9
STAFFING OF RESERVATION SCHOOLS (1 974-75)
BY ETHNIC DIVISION
Lwl
Legend:
N Indian
No. of Personnel
Window Rock Elem.
Window Rock H.S.
Tuba City Elem.
Whiteriver Elem.
Monument Valley H.S.
Indian Oasis Elem.
Indian Oasis H.S.
Sacaton Elem.
0
27
Teacher Recruitment
The pressure of teacher housing forces the reservation
districts to seek couples where both husband and wife
are teachers and/or teachers whose spouses are federal
employees and thus have housing available through the
federal agency. The wives of doctors employed by
public health services are particularly desired. As
another method of solving the teacher housing
shortage, several districts have specifically advertised
for teachers who own trailer homes. The district then
provides parking space, utilities, and other services for
minimal charges.
Special consideration is also given to recruiting
unmarried teachers without families, since smaller
living facilities will satisfy their needs. These efforts
contribute to high teacher turnover rate because of the
higher mobility of these types of teachers.
Reasons for Leaving
A tabulation of the reported reasons for terminating
has been made (Table 10). Some of the reasons
indicated during visitations by teachers, administrators
and board members are not included in this tabulation.
A category such as "personal reasons" might include
many of these, except that many of the discontinuing
teachers desire not to have such an indication on their
permanent records. This probably accounts for the
high incident of "reason for termination unknown".
Among the special reasons given for the large turnover
are :
a. the isolation of the reservation schools and
surrounding communities
b. inadequate or minimal living facilities
c. no chance for the teachers to own their own
homes and to develop a feeling of belonging to
the community.
An additional rarely stated reason for some teachers to
leave is their desire to rear their children among peer
groups where they would be a part of the majority
rather than constituting a small minority.
Several superintendents indicated that each year they
have a number of applications for teaching positions
from young, highly qualified, idealistic teachers who
have little appreciation for the problems of reservation
teaching and who have ideas of changing or improving
*Advisory Committee Member Dillon Platero, Navajo Division
of Education, states, "Many Indians, based on their
observations over the years, feel that most of the non-Indian
teachers are here only for the money and will leave as soon
as they fmd a better paying job."
the "Indian situation". Most are soon disillusioned by
the difficulty of attaining their goal and seek to return
to more familiar habitats. Usually they refuse renewal
and leave at the end of their annual contracts, though
it is not uncommon for some to break them
precipitously and leave before the end of the year. The
district administrators prefer to seek replacements
rather than to operate with disgruntled staff members.
There has also been a substantial loss of certified
personnel to the BIA schools, which generally offer
higher salaries, better housing, year-round contracts
and the more favorable civil service retirement and
fringe benefit package. The losses to BIA are usually
teachers who both desire, and are uniquely qualified,
to teach on the reservation.
Whiteriver Elementary School serves the White
Mountain Apache Tribe and is located in a scenic
region of Navajo County. These buildings constructed
in 1955 and 1959 provide for an Average Daily
Membership (ADM) of approximately 600 students. In
addition to the usual educational facilities, the campus
includes trailer parks and apartment housing for staff
members.
Teachers in Federal Programs
The uncertainty of funds from federal programs place
the district in a bind with respect to Arizona Teachers'
tenure laws. These programs all carry the caveat
"subject to the appropriation of funds by the
Congress". Lack of funding has caused some of these
programs to be terminated with minimum forewarning
and no allowance for planning. To protect the regular
staff, teachers hired specifically to work in federally
funded programs have frequently been forced to waive
their opportunity to achieve tenured standing. The
districts issue these teachers special contracts which
specifically avoid their becoming protected by
Arizona's tenure law.
BIA teachers are not required to meet the certification
standards established in Arizona State law. While most
BIA teachers meet these requirements, some do not.
Table 10
REASONS FOR TEACHER TERMINATIONS
Source: State Department of Education
Chinle
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
White river
Kayenta
Holbrook High School
Alchesay
4
2
1
1
2
1
5
1
5
1
4
Monument Vly High School
'~ easonfo r Termination Total
A EMPLOYED IN ANOTHER ARIZONA SCHOOL SYSTEM . . . . . . . . . . . . . . . . . 32
B EMPLOYED AT AN ARIZONA COLLEGE OR UNIVERSITY . . . . . . . . . . . . . . . . 5
C EMPLOYED IN AN OUT-OF-STATE EDUCATIONAL SYSTEM . . . . . . . . . . . . . . . 48
D ENTERED ANOTHER VOCATION . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1
E RETURNED TO COLLEGE FOR FURTHER STUDY . . . . . . . . . . . . . . . . . . . 7
F RETURNED TO FAMILY RESPONSIBILITIES . . . . . . . . . . . . . . . . . . . . . . 29
G DEATH OR INCAPACITATING ILLNESS . . . . . . . . . . . . . . . . . . . . . . . . 3
H RETIRED. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
I INVOLUNTARILY TERMINATED . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
J REASON FOR TERMINATION UNKNOWN. . . . . . . . . . . . . . . . . . . . . . . 89
Indian Oasis 1
Marana Elementary
Marana High School
Eloy
Sacaton
1
1
1
2
9
1
6
1
1
2
2
3
1
3
1
4
3
3
1
2
1
1
1
2
1
2
1
2
4
3
2
1
1
2
1
1
12
4
1
1
<
9
10
4
2
1
1
1 2
9
1
1
4
2
To permit the cooperative effort between BIA and the
public school district at Tuba City, all BIA teachers
have been required to be certified under Arizona State
law.
Native Language Teacher Aides
Federal funds from the Title IV program have provided
funds for bilingual aides to assist non-Indian teachers
and children. Some districts fund this type of program
under their regular budget. The aides are being used
almost exclusively at the lower grade levels. The
language problem seems less severe on the Apache and
almost non-existent on the Gila River reservations. The
public schools in these areas are also employing
Indian-speaking aides both from federal and general
operations budgets. Most teachers indicated their
appreciation for the assistance of the aides.
Based on the success of this program and the need for
communication, even though language itself may not
be the critical problem, many suggest that the aide
program be extended through all grades. It is
particularly needed where there is a lack of adequate
counseling or understanding of cultural differences.
These factors contribute materially to dissatisfaction,
disillusionment and dropouts.
V. SCHOOL FINANCING
State law establishes fundamental budgetary
requirements that must be met by every public school
district [ARS 15-1201 and Supra]. Whereas prior to
1974 these statutes included the basic budget format,
now the responsibility for format, establishing
reporting requirements, data collection and reporting
resides with the Department of Education. They have
required increased delineation of basic line items,
particularly those relating to administration,
instruction, capital outlay and transportation. More
complete data on federally funded programs are also
being required.
The Superintendent of Public Instruction publishes an
annual report which includes certified data from each
district on expenditures, receipts, staffing and
attendance, as well as tax information. The total
expenditure category is divided into administration,
instruction, operation, maintenance, ancillary services,
fixed charges, contingencies, capital outlay and other
expenses which are mostly tuition paid to other
districts. These annual reports have been the prime
source for most of the data employed in this report.
Total expenditures for the years 197 1-72 through
1975-76 are tabulated in Table 1 1.
Indian Oasis Elementary and Baboquivari High schools
are located in Sells, Arizona, the heart of the Papago
Reservation. Some children are bused over 50 miles
from their homes to attend these public schools. The
district's lack of taxable property makes it one of the
state's poorest school districts in valuation/student.
Budget Expenditures
Table 12 and Figure 12 summarize the district
expenditures in terms of dollars per pupil. To obtain
these data, the total expenditures were divided by the
total student population. The tabulation contains the
total subdivided among administration, instruction and
all others. Transportation and capital outlay are
included in the "all other" total since they will be
considered separately later in this report. Graphs of
these data are presented both on a dollars-per-pupil
basis (Figure 12), as well as the percentage of the
annual budget absorbed in each category (Table 13 and
Figure 13). Extreme care must be exercised in drawing
conclusions directly from these data since
circumstances differ widely in the various districts.
Program requirements as determined by local school
boards vary from district to district. Unfortunately, it
is difficult or impossible for the governing boards to
exercise their program prerogatives when funding is not
available to satisfy minimal requirements. Frequently
the individual school budgets are more determined by
the funds available than by the programs needed.
Accounting System Requirements
Districts forced to rely heavily upon federal funding
are frequently placed in an untenable position because
of the different accounting methods required by the
state and the federal agency. Arizona mandates a cash
accounting system which requires funds. to be
appropriated prior to expenditure or commitment,
except under special circumstances when it allows
deficit financing. Arizona State law requires public
school districts to anticipate receipt of federal funds
for which they are eligible. The state's support levels
are then adjusted in accordance with these budgeted
Window Rock
Ganado
Chinle
Tuba City El
Tuba City HS
Globe El
Globe HS
Holbrook El
Holbrook HS
Whiteriver El
Alchesay HS
Kayenta El
Monument Vly HS
Indian Oasis
Marana El
Marana HS
El0 y
Sacaton
Table 11
TOTAL GENERAL FUND EXPENDITURES
1971-72' 1972-73l 1973-74l
$3,040,564 $3,177,259 $3,659,965
2,179,385 2,676,025 2,464,274
3,328,387 3,992,441 4,778,610
1,776,805 1,937,024 2,556,845
713,253 802,766 1,257,871
954,152 1,062,275 1,186,583
714,467 765,015 929,168
1,2 16,294 1,3 13,240 1,338,098
769,490 833,658 862,741
1,116,460 1,268,756 1,3 1 1,345
543,404 455,885 652,939
1,166,221 1,243,309 1,888,880
639,57 1 855,713 1,335,550
1,065,793 1,216,261 1,47 1,648
1,196,814 1,424,9 18 1,676,3 16
644,038 772,678 1,011,863
1,148,462 1,243,507 1,196,297
987,700 1,054,175 1,26 1,249
'~eport of the Superintendent of Public Instruction - 1971-72, 1972-73, 1973-74.
2~ctuaFl und Expenditures - District Reports.
3~doptedB udget 1975-76.
Table 12
BUDGET EXPENDITURES-TOTALS IN DOLLARSISTUDENT (1973-74 and 1974-75)
FOR ADMINISTRATION, INSTRUCTION AND ALL OTHERS
1973174
Adminis- Instruc- All
tration tion Others
ELEMENTARY
Tuba City $ 7 9 $1,173 $ 7 0 2
Globe 26 512 128
Holbrook 40 750 209
Whiteriver 42 783 392
Kayenta 152 953 816
Marana 70 575 334
Elo y 36 56 1 176
Sacaton 131 926 390
ELEMENTARY THS
W Window Rock
t4 Ganado
Chinle
Indian Oasis
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
AVERAGE OF STATE FOR ELEMENTARY 37 655 212
AVERAGE OF STATE FOR HIGH SCHOOL 5 5 797 29 5
Source: Annual Report of the Superintendent of Public Instruction.
Total
1974175
Adminis- Instruc- All
tion Others Total
Funds listed in the Annual Reports under the category "Federal Aid" have been prorated among Administration, Instruction or All Others in
accordance with the federal aid program reports maintained by the Office of Education. Other shifts adopted by the Department have been made
with respect to the data contained in the older reports.
Figure 12
BUDGET EXPENDITURES - ADMINISTRATION, INSTRUCTION, TRANSPORTATION,
CAPITAL OUTLAYS, AND ALL OTHERS, 1974-75
(In Dollars Per Student)
Legend :
Admin. Instruction Trans. Cap. Out. All Others
ELEMENTARY
Globe
Eloy
Holbrook
Marana
Whiteriver
Sacaton
Tuba City
Kayenta
ELEMENTARY THS
Ganado
Chinle
Window Rock
Indian Oasis
HIGH SCHOOL
Globe
Holbrook
Alchesay
Marana
Tuba City
Monument Valley
AVG. OF STATE
FOR ELEMENTARY
AVG. OF STATE
FOR HIGH SCHOOL
Dollars Per Student
0 400 800 1200 1600 2000 2400 2800 3200 3600
0 400 800 1200 1600 2000 2400 2800 3200 3600
33
Table 13
ELEMENTARY
Tuba City
Globe
Holbrook
Whiteriver
Kayenta
Marana
El0 y
Sacaton
ELEMENTARY THS
Window Rock
Ganado
Chinle
Indian Oasis
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
STATE ELEMENTARY
STATE HIGH SCHOOL
PERCENT OF TOTAL BUDGET
EXPENDED FOR ADMINISTRATION, INSTRUCTION,
AND ALL OTHER EXPENSES (1973-74 and 1974-75)
Source: Calculated from data contained in "The Annual Report of the Superintendent of Public
Instruction."
1973-74
Admin Inst All Other
4 .O 60 .O 35.9
3.9 76.9 19.3
4 .O 75.1 20.9
3.5 64.3 32.2
7.9 49.6 42.4
7.2 58.7 34.2
4.7 72.6 22.8
9 .O 64 .O 26.9
4.5 66.3 29.1
7.5 56.7 35.8
5.4 50.2 44.3
8.5 56.4 35.2
3.3 59.3 37.3
4.4 73.4 22.1
5.3 64.5 30.2
2.8 62.3 35.0
7.8 44.3 47.9
5.6 53.9 40.5
4.1 72.5 23.4
4.8 69.5 25.7
Percentages were calculated after prorating federal aid funds in accordance with their use among the
three categories-Administration, Instruction, and All Others.
1974-75
Admin Inst All Other
4.9 61.2 33.9
3.6 77.4 18.9
4.1 74 .O 21.9
5.4 61.4 33.1
4.5 41 .O 54.5
7 .O 71 .O 22 .O
4.1 74.5 21.3
6.5 68.5 24.8
5.1 57.0 38 .O
4.1 62.2 33.6
5.7 45 .O 49.2
7.7 63.7 28.7
3 .o 59.4 37.5
4.4 75.5 20 .o
5.8 68.7 25.4
4.6 69.4 26 .O
4.2 36.7 59.1
2.8 44.7 52.4
3.8 71.9 24.3
4.1 69.1 26.8
Figure 13
PERCENT OF TOTAL BUDGET EXPENDED FOR ADMINISTRATION,
INSTRUCTION, TRANSPORTATION, CAPITAL OUTLAYS, AND
ALL OTHER EXPENSES, 1974-75
.:.:.....:.:.:.::
Legend : ..~:.:...'.::.:::::::::::::;.:,: .;::
Admin. Instruction Trans. Cap. Out. All Others
Tuba City Elementary Globe Elementary Holbrook Elementary
Whiteriver Elementary Kayenta Elementary
Eloy Elementary Sacaton Elementary
Marana Elementary
State Average Elementary
Window ROC^ THS Ganado THS Chinle THS
Indiin Oasis THS Tuba City High School Globe High School
Holbrook High School Alchesay High School Monument Valley H.S.
Marana High School State Average H.S.
anticipations. Delayed or non-receipt of these funds
create deficits. Allowable budgetary deficits are
financed by warrants. In contrast, long-term debt is
financed by the issuance of bonds secured by all
taxable real property in the district. The law limits the
use of bond proceeds exclusively for land acquisition,
construction of capital facilities and their original
furnishings.
The accrual accounting technique of the federal
government allows some appropriations to be delayed
beyond the end of the time period for which they
were intended. This causes considerable difficulty when
these funds are received at the end of the school year,
since cash flow requirements mandate that bills be paid
on time. If delays beyond the due date occur, the
districts must issue warrants which borrow money
from the banks and require the districts to repay with
interest on the funds. The interest costs are not
reimbursed by the federal agency.
A more severe dilemma is faced by the districts when
funds are received by the district in the school year
subsequent to that for which they have been intended.
Under these circumstances, the state law provides that
the district must close its books at the end of the year
and budget funds to cover any deficit in the
subsequent year's budget. This procedure requires them
to establish a district property tax rate sufficient to
cover the district's needs plus the deficit. To avoid
confiscatory tax rates, most districts cut programs or
otherwise divert operational funds to compensate for
the deficit. When the federal funds finally arrive during
the following year, they become a surplus, which may
not be eligible for expenditure under state law. These
circumstances have resulted in widely fluctuating
year-to-year local tax rates, illogical program
expansions and contractions.
The most difficult situations arise when the anticipated
federal funds are not appropriated by the Congress or
are diverted away from the district. Since the district
annual budget must be developed and approved in
anticipation of these funds, the non-receipt produces a
deficit which must be financed by the registration of
warrants or diversion of funds from other areas of the
budget. In recent years, these deficits have reached such
extremely high levels that district superintendents fear
the consequences. They contend that the alternatives are
closing down the district schools through bankruptcy or
establishing tax rates so high as to force industry to
abandon their efforts and resources.
Holbrook High School from the Gymnasium (1954
addition) looking toward the Main Building. While
Holbrook does not conduct any of its classes in
relocatable buildings, many of its permanent classroom
facilities are considered obsolete.
Reporting Requirements
Administrators find themselves entangled in an
avalanche of paper. The deluge could absorb all of their
time if each request were fully accommodated. The
situation is little better in non-reservation schools.
Reservation schools have the increased requirements of
the plethora of federally sponsored programs. All sorts
of forms and qualification data are required by the
different programs. The same students must be
separately qualified on different forms for several of the
programs which provide funds vital to the school
district's operation. Data must be kept in different
formats despite its basic similarity. Many administrators
complained that the time consumed and staff required
to satisfy these paper-work needs are unreasonable.
"Hardly a week goes by without another new study,
analysis or report, placing additional demands on our
time ."
Utility Costs
The cost of utilities in rural areas is generally higher than
in urban areas and is considerably higher on the
reservation. The sparse population requires that power
transmission lines extend over long .distances and carry
smaller loads. In several cases on the reservation,
electrical utilities are operated by the tribes. Their rate
structures are not controlled by the State Corporation
Commission; hence, evaluations and rate comparisons
are not readily available. Budgeted utility costs in
reservation districts in the northern part of the state, as
all districts in that area, include the costs of winter
heating which adds substantially to their budget require-ments.
In addition, the districts must frequently provide
tanks for bottled gas and complete water systems,
including well drilling, pumping, piping and storage.
Bus Parking, Ganado District. The low population
density of the reservation population generates large
demands for student transportation on the school
district. These demands translate into a wide range of
equipment from the small six-passenger mini-buses to
the largest commercially-produced school buses. A
district's bus fleet may include extremely old, almost
wom out equipment as well as the most modem.
VI. TRANSPORTATION*
On the Navajo and Papago reservations, and to a lesser
extent on the Apache and Gila River reservations, the
population is widely dispersed in relatively low
concentration units. There are few towns of substantial
size despite the large reservation populations. Not only
are the residences widely spread, the people are also
highly mobile as a result of their agrarian activities.
Extensive transportation systems are required to
accommodate the children in reservation school districts.
The cost of transportation is shown in Table 14, both on
a dollar-per-pupil basis and on a percentage of the total
budget for both 1973-74 and 1974-75. These data were
obtained from the report of the Superintendent of
Public Instruction and correlated with reports of the
individual districts. Table 15 includes:
1. total transportation budget
2. the number of students transported
3. miles of transportation per day
4. the average number of miles per transported
student
5. the cost in dollars per mile per year
6. the dollars expended per student transported per
year
Table 16 indicates the number of students transported
as compared to the total district ADM. As there are
*Total distance of all bus routes and the percentages over
paved and unpaved roads was sought. This data is not now
available but is being developed by eabh district based on
request from the Department of Education.
many different ways of counting student population,
the technique for arriving at the total number of
students transported rarely employs the same basis.
Depending upon convenience, tuition students may be
transported who are not included in the district ADM.
Rosters of the names of students transported are
usually kept and counted to arrive at the total. A
student may be counted twice if he changes routes.
Those who attend for only part of the year and are
not deleted from the roster until year's end also
contribute to an apparent discrepancy. A uniform
system for state transportation aid is now being
developed by the State Department of Education.
The development of a basic reservation road system is
contributing to the growth in the public school
attendance. Despite great improvements that have been
realized, a large portion of this system is rough, barely
passable, unpaved roads. The districts' large fleet of
buses are required to traverse these daily in bringing
the children to and from school. Occasionally, weather
conditions make the roads impassable. The schools
must make special provisions for the possibility of
being virtually isolated for periods longer than one
week. Due to the unpredictability of weather, the
duration and occurrence of these situations cannot be
accurately anticipated.
These road conditions contributed to the higher than
average repair and maintenance budgets. Accurate
comparable cost data were not yet available from the
school districts. An idea of the magnitude of the
relative costs is indicated: a trucking company
operating a large fleet of long haul vehicles in the
Australian Outback territory reported cost differentials
between operating over unpaved and paved roads.
Bus Repair Garage, Chinle District. Not only is student
transportation a major expense of the reservation
districts, but vehicle maintenance is even more
challenging. The largely rough unpaved reservation road
system contributes to frequent breakdowns and
wearout. Isolation makes outside repair sources both
time consuming to obtain and expensive.
Table 14
TRANSPORTATION COSTS
(1973-74 and 1974-75)
IN DOLLARS/STUDENT' AND PERCENT OF TOTAL BUDGET
1973-74
Dollars/ Percent of
Pupil Budget
1974-75
Dollars/ Percent of
Pupil Budget
ELEMENTARY
Tuba City
Globe
Holbrook
Whiteriver
Kayenta
Marana
Eloy
Sacaton
ELEMENTARY THS
Window Rock
Ganado
Chinle
Indian Oasis
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
STATE AVERAGE ELEMENTARY
STATE AVERAGE HIGH SCHOOL
l~ncludesto tal membership (some of whom do not use transportation) on basis of 8-month report.
Source: Calculated from data contained in the Annual Report of the Superintendent of Public Instruction.
Figure 14
EXPENDITURE FOR TRANSPORTATION - 1974-75
(In Dollars Per Student)
Dollars Per Student
0 100 200 300 400 500 600
ELEMENTARY
Tuba City
Globe
Holbrook
Whiteriver
Kayenta
Marana
Elo y
Sacaton
ELEMENTARY THS
Window Rock
Ganado
Chinle
Indian Oasis
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
STATE ELEMENTARY
STATE HIGH SCHOOL
0 100 200 300 400 500 600
40
Table 15
TRANSPORTATION COSTS AND DISTANCES (1974-75)
~ollars/l
Mile/
Year
~ o l l a r s / ~
Student/
Year
Number of Miles
Transportation Students Transported Miles/
Budget Transported Per Day Student
Window Rock
Ganado
Chinle
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
Holbrook High School
e Whiteriver Elementary
Alchesay High School
Kayenta Elementary
Monument Valley High School
Indian Oasis 166,596 463 689 1.5
Marana Elementary
Marana High School
Eloy
Sacaton
Arizona (Total) $2 1,022,793 157,152 1 10,054 .7
l ~ o l l a r s / ~ i l e / ~ise oabrt ained by dividing Transportation Budget by Miles Transported Per Day.
2 ~ o l l a r s / ~ t u d e n t / ~ies acarl culated by dividing Transportation Budget by Number of Students Transported.
Source: Department of Education
Figure 15
TRANSPORTATION 1974-75 :
Dollars Per Mile Per Year, Dollars Per Student Per Year, and
Percent of Students Transported
APACHE COUNTY:
NOTE: Left-hand scale reads dollars/mile/year;
right-hand scale reads dollars/student/year.
Legend:
mWindow Rock s345000
300
250
APACHE COUNTY: COCONINO COUNTY: ~~b~ city GILA COUNTY:
$400 $400
350 350
300 300
250 250
200 200
150 150
100 100
50 50
0 0
GILA COUNTY:
Globe High School
1400 m
NAVAJO COUNTY:
Holbrook Elem. &
Holbrook H.S.
$400
- 350
- - 300
- - 250
- - 200
- - 150
PIMA COUNTY:
Whiteriver Elein. Ka~entaE lem. &
& Alchesav H.S. Monument Vly. H.S. Indian Oasis
PIMA COUNTY: PINAL COUNTY: ARIZONA (TOTAL)
Marana E!em. &
Marana 1I.S. Eloy Elementary Sacaton Elementary
$400
350
300
250
200
150
100
50
0
43
Table 16
STUDENT TRANSPORTATION 1974-75
Number of Total
Students District
Transported ADM
Percent of
Students
District Transported1
Window Rock 1,45 1 2,444
Ganado 1,193 1,500
Chinle 3,688 4,076
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
Holbrook High School
Whiteriver Elementary
(Alchesay) High School
Kayenta Elementary
Monument Valley High School
Indian Oasis 463 1,015
Marana Elementary
Marana High School
Sacaton 604 834
State Total 157,152 482,379
'correlation errors may be included in the percentages since different methods of accounting are employed in
the determination of Number of Students Transported and Total District ADM (e.g., some students change
routes, consequently are counted more than once). Additionally, the number of students transported may
include tuition students who are not included in the District ADM.
Sources: The Annual Report of the Superintendent of Public Instruction and individual District reports.
Records maintained for 20 trucks traveling over more
than 1,240,000 miles were compared. Tire costs were
more than 500 percent higher, fuel cost 20 percent
more and repairs and maintenance over two and
one-half times for operation on unpaved roads as
compared to paved roads. In addition, body overhaul
was eight times as much.14
Staffing to keep the buses running generates another
major quandary. Since a limited number of trained
mechanics are available from among the Indian
population and staff housing is at a premium, an
inordinate amount of repair work must be contracted
from urban centers such as Phoenix and Albuquerque,
which are 200 to 300 miles away. The districts have
the unhappy choice among investing their limited
capital outlay funds for the procurement of extra
buses, paying expensive repair charges or not providing
the needed transportation.
A major problem arising from the extensive student
transportation system on the reservation involves
accommodations far the drivers. In many cases, other
than custodial functions, there are few additional
district jobs for the drivers. There is little or no
industry to provide opportunity for drivers to have a
second job. They must wait idly until school is over so
they can make the return run. In response to the
remoteness of some routes, many districts allow drivers
to take the buses home and park them overnight, to
have them ready for the next day's trip.
VII. CAPITAL OUTLAY
Arizona school districts have several sources of funding
to finance their schools' facilities including buildings,
sites, furniture and equipment. The most popular and
usually most adequate financial source for new
construction and furnishings comes from the bonding
process. School districts, with the approval of their
patrons, are allowed to incur bonded indebtedness of
up to 10 percent of their taxable property valuation.
Additional bonding capacity can be obtained only as
bonds are redeemed or as the property valuations
increase. The I0 percent bonding limit applies
separately for elementary and high school districts.
Districts may also impose a special 30 cent tax levy to
accumulate funds for capital outlay. These funds may
not be expended for site acquisition, building repair,
purchase and furnishing, or lease-purchase contracts for
' either transportation equipment or portable classrooms
without the approval of the district patrons
[ARS 154451. A third method of funding for repairs,
minor additions, furniture and leased facilities are
14~sphaltA, sphalt Institute, College Park, Maryland, Volume
27, No. 3, pg. 3, July 1975.
through budgeted capital outlay. These are included in
the districts operating budget. All three of these
methods of funding capital facilities rely on the local
property tax rate, since bonding is a form of deferred
property taxation. Table 17 shows the budgeted capital
outlay in terms of dollar per student and the
percentage of the budget. The relatively higher effort
on both bases for Indian reservation districts is quite
apparent despite their avoidance of bonding. They feel
that the amounts available through bonding are
inadequate to fund a major building project. State
criteria for capital funding is encouraging these districts
to bond to their limits.
For the year 1974-75, the state provided emergency
facility aid totaling $9,000,000. A complex set of
qualification criteria was established to determine
eligibility for these funds. These criteria included
district wealth, student population growth, bonded
indebtedness and tax rate. None of the districts in this
survey qualified, although Chinle district officials
believe their needs are as great or greater than some
who did qualify. The federal government has been the
only other source of capital funds.
Reservation districts, whose tax base is diminished by
federally imposed exemptions of Indian homes and
land, have been allocated federal monies for capital
outlay through Impact Area Aid (P.L. 81-81 5) and
Johnson-O'Malley (P.L. 73-167). These monies have
been erratic because of changing federal regulations,
shifting priorities and inadequate congressional
appropriations. Recent strictures deny use of
Jonson-O'Malley monies for this purpose except under
highly restrictive circumstances.
Sacaton School acquired from Bureau of Indian Affairs
(BIA). Built in 1924, this building is scheduled for
replacement when Sacaton's new $4.2 million
elementary school is occupied in the Fall of 1976. The
district serves the Gila River and Maricopa Indian
Reservations. Outside of this building, the district has
had to conduct more than one-third of its classes in
temporary and relocatable classrooms.
Table 17
ELEMENTARY
Tuba City
Globe
Holbrook
Whiteriver
Kayenta
Marana
El0 y
Sacaton
ELEMENTARY THS
Window Rock
Ganado
Chinle
Indian Oasis.
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
STATE ELEMENTARY
STATE HIGH SCHOOL
CAPITAL OUTLAY/STUDENT EXPENDITURE
1973-74 and 1974-75
These data are derived by dividing expenditure totals and capital outlay totals by district total ADM.
Adjustments have been made based on prorating federal aid funds by capital outlay and other purposes.
Source: Annual Report of the Superintendent of Public Instruction.
Figure 17
EXPENDITURE FOR CAPITAL OUTLAY - 1974-75
(In Dollars Per Student)
Dollars Per Student
ELEMENTARY
Tuba City
Globe
Holbrook
Whiteriver
Kayenta
Marana
Eloy
Sacaton
ELEMENTARY THS
Window Rock
Ganado
Chinle
Indian Oasis
HIGH SCHOOL
Tuba City
Globe
Holbrook
Alchesay
Monument Valley
Marana
STATE ELEMENTARY
STATE HIGH SCHOOL
Sacaton's New School
Eight years ago the Sacaton District applied and
qualified for funding from federal sources. Their $3.8
million application, while not honored, was placed on
the priority list. Each year since 1966-67, the district
anticipated the money but was denied until 1974 when
it became available. Ground has been broken this
summer and occupancy of the new $4.8 million
facility is scheduled for the beginning of the 1976-77
school year. Since the original application it will have
taken almost ten years to realize the occupancy of the
new facilities.
Red Mesa High School, Chinle District, is scheduled to
occupy these buildings-its first permanent classroom
structure-before the end of 1975. Opened in 1969,
Red Mesa is now serving over 350 high school
students. With the completion of its new facilities, the
school will still be overcrowded and have inadequate
shop and Home Economic areas.
Red Mesa High School
Red Mesa High School in the Chinle District, Apache
County, is now under construction. When the facilities
are actually occupied later this year, the district
anticipates that the high school population will have
grown to exceed the new buildings' design capacity,
and thus, some of the inadequate so-called temporary
structures will continue to be utilized for their
programs. Funding allocations for this high school have
come from the sale of bonds, federal funds, and
budgeted outlay.
The relatively higher cost of construction in remote
locations aggravates the financing problem. Increased
costs have been associated with almost all aspects of
these types of construction. For the Red Mesa High
School construction, all of the concrete has had to be
transported from Clarkdale. This is a distance of over
200 miles. This has been necessitated since no gravel or
mixing facility is available at a closer location.
Consequently, transportation costs for the concrete
were over twice the cost of the material itself. Other
increased costs due to remote locations involve special
living expenses and salary incentives, which usually
must be provided to obtain qualified workmen.
In this effort, the district has bonded itself to the legal
limit. Some of the vocational and career education
programs which the board would like to mandate will
continue to be unmet for lack of adequate shop and
other facilities to meet the needs in these areas.
Alchesay High School District
The Alchesay High School District in Whiteriver has
tried to meet its growth needs by making a series of
additions funded by revenue from taxation capability
so that there are now three internal-external fire wall
partitions. More economical and uniform construction
might have resulted had these additions been made
under one contract. Unfortunately, the district's
budget and limited bonding capacity did not permit
this option.
Temporary or Relocatable Buildings
Many of the needs of districts over the state are being
solved, at least on a temporary basis, through the lease,
purchase or lease-purchase contract of relocatable or
trailer classrooms. Most rapid growth districts have
been forced to one of these alternatives, although some
have later been able to construct permanent buildings.
Reservation districts have had to rely heavily and
continuingly on these solutions to their classroom
needs (Table 18). These facilities, despite contrary
intent, are frequently being considered as permanent
and are either offsetting or diminishing fund eligibility
and priorities under the capital facility section of
Impact .Area Aid (P.L. 74-815). Many of these
relocatable facilities have been in use for several years
and show evidence of excessive wear and deterioration.
In contrast, a number of well-designed and constructed
facilities that have been in use for more than five years
were showing little or no signs of deterioration.
Buildings for northern reservation districts are designed
with snowload type roofs requiring additional
structural materials, either steel or wood. Techniques
and design for this type of facility have improved to
such an extent that several of the teachers interviewed
indicated their preference for this type of facility
compared to the self-contained, more conventional
type of facility. They contend that the relocatables are
better because of the isolation from hallway noise and
more convenient because of independent
heating/cooling controls. The most highly favored are
large, well lighted, carpeted and have self-contained
lavatory facilities.
Table 18
(page 1)
CLASSROOMS-PERMANENT AND RELOCATABLE
Total
Classrooms
APACHE COUNTY
Pennanent
Number %
Relocatable
Number %
Window Rock District-Total 123
Window Rock Elementary 34
Ft. Defiance Elem. & Jr. High 5 1
Window Rock High 3 8
Ganado Junior ~ i g h 14 :: I 2 16
12
Ganado High 52
Ganado District-Total 96
92 7 5
14 4 1
45 88
3 3 8 7
Round Rock ~lementar~ 10
Many Farms Elementary 24
Chinle Junior High 3 1
Chinle High 49
Red Mesa Elementary 18
Red Mesa High 13
3 1 25
20 59
6 12
5 13
46 48
Chinle District-Total 186 11 77 4 1
COCONINO COUNTY II I
50 52
Ganado Elementary 49
109 56
I 17 35
Chinle Elementary 41
Tuba City District-Total 123
GILA COUNTY I I
3 2 65
Tuba City ~ntermediate 3 1
Tuba City Junior High 32
Tuba City High 3 1
18 44
1 107 8 7
20 6 5
28 88
3 0 97
NAVAJO COUNTY I I 1
23 56
16 13
Tuba City Primary 29
Globe District-Total 125
Central 12
East Globe 2 7
Noftsger 9
Globe Middle 2 5
Globe High 5 2
29 100
119 9 5
10 83
23 85
9 100
25 100
5 2 100
Holbrook District-Total 112
Sheldon 7
Hule t 15
Woodruff 1
Pittman 2 1
Holbrook Junior High 18
Holbrook High 50
-- --
6 5
2 17
4 15
-- --
-- --
-- --
103 92
7 100
15 100
1 100
20 95
16 89
44 88
9 8
-- --
-- --
--
1 5
2 11
6 12
Table 18
(page 2)
CLASSROOMS-PERMANENT AND RELOCATABLE
NAVAJO COUNTY (Continued) /I I
Relocatable
Number %
Total
Classrooms
Permanent
Number %
Whiteriver District-Total 69
Whiteriver Elementary 24
Seven Mile 12
Whiteriver Junior High 10
Alchesay High 23
PlMA COUNTY II I
I
1 I 9 2
4 40
23 100
Kaye'nta District-Total 86
Kayenta Elementary 40
Kayenta Junior High 13
Monument Valley High 3 3
59 86
2 1 88
Topawa
Baboquivari
10 14
3 13
47 55
16 40
11 85
20 61
Indian Oasis District-Total 6 1
39 45
24 60
2 15
13 39
40 64 1 2 1 36
Marana District-Total 138
PINAL COUNTY I I
1 124 90 1 14 10
Thornydale 20
Marana Junior High 36
Marana High 43
Indian Oasis Elem. & Jr. High 22 6 27
9 45
3 3 8
43 100
Annex
Eloy Junior High
Central
16 73
Marana Elementary 39
Eloy District-Total 77
Curie1 26
Source: Data obtained from each District.
39 100
I
Sacaton District-Total 40
Sacaton Elementary 40
-- --
7 5 9 7 2 3
2 5 63
2 5 63
26 100 I - --
15 3 7
15 3 7
Figure 18
TOTAL CLASSROOMS - PERMANENT AND RELOCATABLE
Window Rock
District Total
Globe
District Total
Ganado
District Total
Chinle
District Total
Tuba City
District Total
Holbrook
District Total
Whiteriver
District Total
Kayenta
District Total
Indian Oasis Marana Elov Sacaton
District Total District Total District Total District Total
Age of Facilities
Table 19 lists the school buildings in the districts
included in this survey with the dates of their original
construction and major additions. The areas of these
buildings employed for academic purposes are also
included. The age of a building by itself is a poor
indicator of its present condition. Original design and
quality of construction together with maintenance are
also of critical importance. Care should be exercised in
any attempt to relate population to building area.
None of the many efforts to establish standards has
received sufficient acceptability. Lack of funds for
capital facilities and overcrowding have forced the
continued use of obsolete and inadequate facilities.
Topawa Elementary School, Indian Oasis District, was
built as a missionary school by the Papago Tribe.
Construction plans, if they ever existed, have
disappeared and the date of construction seems to have
been forgotten. With the addition of three classroom
wings and three relocatable classrooms, Indian Oasis
School District is conducting K-5 classes for over 300
students.
Chinle is using a metal building badly in need of repair
or replacement. It was acquired from the Navajo Tribe
and has previously been used as a Chapter House.
Other districts are similarly attempting to meet the
building requirements through the use of all available
means. In addition to the ones outlined above, former
BIA school buildings at Many Farms and Round Rock
schools, Chinle District and Sacaton, all types of
trailers and former mission schools, as in Topawa,
Indian Oasis District, are also being employed for
classroom and ancillary educational purposes. The
facility problems on the reservations have been made
acute by the rapid rate of student population growth.
In most instances the existing facilities are quite
adequate for their intended use, except that there are
not enough of them, and they become ineffectual from
excessive overcrowding. Table 20 contains a summary
of the facilities available in each of the elementary
schools included in this study. Besides classroom space,
very little is required at the lower grades. In contrast,
to support high school programs adequately, a large
variety of specialized academic facilities are required.
Table 21, High School Designated-Use Areas, reflects
the substantial effort of each high school to make a
full set of facilities available. Some districts do not
offer certain programs because of their lack of
facilities. More often, programs are not being presented
adequately because of insufficiency of suitable
facilities.
Materials and Construction Costs
The cost of delivering materials and supplies to the
reservation constitutes a large expense as well as a
great inconvenience. Several districts have found it
expeditious and often more economical to purchase
large trailer trucks to make scheduled trips to Phoenix,
Flagstaff and Tucson to haul supplies for the district.
A district must be reasonably large to have sufficient
volume to justify this arrangement. Marston Supply
Company, Phoenix, Arizona, indicated that buildings
on reservations cost 15 percent more to build and
furnish. As a further example, they cited the cost of
shipping a commonly specified desk-from Temple,
Texas, to Phoenix, $1.50; from Phoenix to Kayenta
$2.00.
Costs of a single portable classroom are between $800
and $1300 higher when delivered to a remote
reservation location as compared to a
Phoenix/Metropolitan location.
VIII. TEACHER HOUSING
Teacher housing is one of the costs unique to the more
remote reservation school districts. Since private
ownership of land or houses is not available to
non-Indians, the school district must provide housing.
The number of staff housing units and percentage of
non-Indian staff housed are included in Table 22.
Housing units run the gamut from one bedroom and
efficiency permanent apartments through three- and
four-bedroom houses, and also includes mobile homes
or trailers owned by the district. Though the table
does not include owner-occupied trailers, the districts
are often required to provide space, utilities and
maintenance services. While this housing is frequently
called "teacherage", it must also be supplied for many
administrative staff members and occasionally, Indian
staff members.
It is extremely difficult to determine the total amount
of teacher housing expense, since it is not isolated or
lined out in budgets. Parts of it appear in many places.
Original construction is found either under budgeted
Table 19
(page 1)
SCHOOL BUILDINGS
Dates of Major Construction and Area
Total
Classroom
Area
(Sq. Ft.)
Total
Academic
Area
(Sq. Ft.)
Year 1st Major Other
Built Addition Additions
(Date) (Date) (Date)
APACHE COUNTY
Window Rock District
Window Rock Elementary
Ft. Defiance Elementary
Ft. Defiance High School
Ganado District
Ganado Elementary
Ganado Junior High
Ganado High School
Chinle District
Chinle Elementary
Chinle Junior High
Chinle High School
Many Farms
Round Rock
Red Mesa Elementary
Red Mesa High School
COCONINO COUNTY
Tuba City District
Tuba City Primary
Tuba City Elementary
Tuba City Junior High
Tuba City High School
GILA COUNTY
Globe District
Noftsger
East Globe
Central
Globe Middle
Globe High School
NAVAJO COUNTY
Holbrook District
Sheldon
Hulet
Woodruff
Pittman
Holbrook Junior High
Holbrook High School
Table 19
(page 2)
SCHOOL BUILDINGS
Dates of Major Construction and Area
Total
Year 1 st Major Other Classroom
Built Addition Additions Area
(Date) (Date) (Date) (Sq. Ft.)
NAVAJO COUNTY (Continued)
Whiteriver District
Whiteriver Elementary 1955 1959 23,040
Whiteriver Junior High 1969 1970 1972 2,898
1973175
7 Mile 1964 1967 11,872
Alchesay High School 1959 1964 1971 7,320
1973
Kayenta District
Kayenta Elementary 1964
Kayenta Junior High 1960
Monument Valley High School
PIMA COUNTY
Indian Oasis District
Indian Oasis Elem. & Jr. High 1958 14,040
Topawa 1 1,440
Old High School 1961 1966
Baboquivari High School 1969 9,210
Marana District
Marana Elementary 1955 1969 1975 26,380
Thornydale 1975 16,800
Marana Junior High 1952 1960 1969 26,417
Marana High School 1975 25,995
PINAL COUNTY
Sacaton District
Original Building
BIA Building
Eloy District
Curie1 1952 1974
Annex 1936
Central 1936 1947
Eloy Junior High 1964
Total
Academic
Area
(Sq. Ft.)
Source: Data obtained from each District.
Table 20
(page 1)
SCHOOL BUILDINGS
DESIGNATED-USE AREAS-ELEMENTARY SCHOOLS
Table 20
(Page 2)
SCHOOL BUILDINGS
DESIGNATED-USE AREAS-ELEMENTARY SCHOOLS
1 3
W
NAVAJO COUNTY
Source: Data obtained from each District.
Table 22
STAFF HOUSING
Window Rock El
HS
Ganado El
HS
Chinle El
HS
Tuba City El
HS
Whiteriver El
Alchesay HS
Kayenta El
Monument Valley HS
Indian Oasis El
HS
Total
Non-Indian
Staff
Source Information Supplied by Districts
"Percent is obtained by dividing Housing Units by TotaI Non-Indian Staff.
Housing
Units Percent*
59.6
Housing units include apartments, houses and district-owned trailers. It does not relate to owner-occupied
trailers for which the districts provide various services in addition to space. Housing is also required for certain
Indian staff members (e.g., eleven Indian teachers on the staff at Ganado occupy district living units).
Permanent Apartments, Indian Oasis District. In
addition to trailers, most reservation districts rent
permanent apartments and housing. Many report that
this more desirable form of staff housing is limited by
the districts' shortage of capital outlay funds.
capital outlay or funded as part of federal construction
projects. Repair and maintenance is included in the
total of these similar functions for the district budget.
Utility costs are handled differently by different
districts although separate metering is often available
either to the individual living units or to the complex
of several units. Some of these expenses are
occasionally included in instructional costs. On the
other. side of the .ledger, rental for this housing is
chargdd to the occupant. Staff recruiting makes it
necessary that the charges be much less than the cost.
The rates are usually set and used to offset district
utility costs and part of the maintenance. A clearer
picture of this expense item could be obtained if all
aspects of teacher housing were lined out separately
within the school districts' budgets.
Staff Housing, Chile District. Fencing and landscaping
efforts improve the appearance and desirability of staff
housing. There is no solution however, to the lack of
community spirit which many contend is caused by
lack of ownership and inability to develop roots. Staff
housing is one of the unique expenses and the source
of many reservation school problems.
Of the school districts included in this project and on
reservations, only Sacaton does not provide teacher
housing. Most of their staff resides adjacent to the
reservation, and a number commute in excess of
30 miles from Plloenix. Several superintendents
indicated that they have been forced to refuse highly
desirable special and remedial programs. Their inability
to .accept this federal or state program support money
resulted from lack of funds to provide capital facilities.
This includes living quarters for teachers who would
work in these programs and classrooms in which the
programs would be conducted. This complaint extends
to the state's mandate for special education as well as
federally funded remediation programs and cultural
enhancement activities. The problem is posed: Which
other programs should we curtail to free the necessary
housing and capital facilities? Lack of adequate and
timely capital outlay funds is currently the most
pressing financial problem of public school education
on the reservations.
District-purchased trailer living units range in price
from $7,000 for singles to $30,000 for double-wide
and tri-plex units. The districts have had to purchase
many of these under lease-purchase agreements due to
the non-availability of funds for outright purchase.
Consequently, districts are being forced to absorb large
interest charges in addition to the original costs.
Wind damage and severe freezing in the winter can
cause maintenance of teacher housing to become
excessively expensive. In the northern reservation
communities of Arizona, it is quite common to have
extremely severe winter storms and cold weather every
second or third year. When this occurs one school
Trailer Housing, Kayenta District. Referred to as
"mud-row", the trailer housing provided for most of
the teaching and other non-Indian staff members is a
source of major concern for reservation school district
administrators. Several contend that being a "landlord"
makes the largest continuing demands on their time as
school administrators.
campus reported the need to replumb and refurbish
15 to 25 percent of the trailers due to freezing. This
activity generates additional administrative problems.
One superintendent contended that he is required to
expend more time being a landlord satisfying his
tenants' complaints than any other single area of
school administration.
Most county payroll systems now arrange rental
payments to be made and accounted as automatic
deductions. The funds are transferred directly to the
district teacher housing fund. The available housing for
the certified and administrative staff ranges between
one-half and three-fourths of need. Very few of the
non-certified staff can be accommodated in available
housing.
Each district has reflected a high priority
for: (1) improving existing facilities, (2) exchanging
trailers for permanent houses and apartments, and
(3) obtaining additional living quarters. Alternative
solutions such as tribal-sponsored rental housing are
being explored.
federal funds should be counted based on budget
approval or only upon receipt. This problem has very
serious consequences as previously indicated. The
category shown as "other" primarily represents tuition
received from other school districts. Tuba City's
benefits from these tuitions will be reduced drastically
in the coming year because of a territorial exchange
with the Page District. While losing the tuition, they
will obtain a much larger property tax base.
A relatively small percentage of the reservation
districts' funding comes from local tax effort whle this
represents the major source for some of the others.
Almost all of the taxable valuations available to
reservation schools are centrally assessed properties,
primarily utilities, railroads, mines and pipelines. Funds
directly from the various counties to the districts are
almost negligible. The counties are required to fund
the teacher retirement and social security contributions
which are not included in the data supporting
Table23. The state-wide total for all county
contributions was almost $50 million for 1974-75.
IX. SOURCES OF REVENUE
Many Indian reservation school districts must rely very
heavily on federal funding due to limited local school
district property evaluation, local property tax being
the only discretionary source of funds available to the
scho~ls.'~ Much of this problem arises from the
federally decreed exemption of Indian-owned homes,
business and land. If all Indian land and homes were
valued by comparable methods, as applied in other
areas of the state, and placed on the tax rolls, some
improvement would be realized, although it would still
provide an inadequate tax base.
Table 23 includes on a percentage basis the
proportions of total revenue contributed by federal,
state, county and local sources. The accompanying
Figure 23 shows pie charts of these same sources of
revenue for each of the districts included in this study.
The contrast in level of federal funds supporting
reservation and non-reservation districts is dramatic. It
shows that the federal funding ranges .from a low of
39.3 percent in Whiteriver to a high of 63.4 percent in
Monument Valley High School. State funding ranges
from a low of 12.7 percent in Monument Valley, to
42.2 percent in Whiteriver. The data in this
presentation is from the 1973-74 school year. Little
difference appears in the 1974-75 year although the
question arises as to whether the commitment of
Overview of Indian Affairs, Arizona Legislative Council,
1972.
Globe East Elementary School showing the paved
playground. The original school was built in 1917 and
the newer three-story classroom wing was built in 1956.
Tables 24 and 25 show the total valuations in each of
the subject districts for 1973-74 and 1974-75
respectively. The state total, divided by the numbers of
students in elementary and high school and a
combination of both, establishes the state average
valuation per student in each of these categories. The
valuation per capita for each district is similarly
tabulated. The three separate criteria, elementary, high
school, and combined elementary and high school, are
necessary because each has special significance. Eloy and
Sacaton are exclusively elementary school districts.
Window Rock, Ganado, Chinle, and Indian Oasis are
classified as elementary schools teaching high school
subjects. Each of the others operates coterminous
elementarylhigh school systems which have been
required to maintain separate budgets prior to this year.
Table 23
SOURCES OF FUNDING (1973-74)
PERCENT OF TOTAL BUDGET
(Mostly
Tuition)
Other
%
Federal State County
% % %
District
District %
Chinle 53.7 37.3 1 .O
Window Rock 54.6 36.6 0.9
Ganado 50.6 28.8 0.8
Tuba City Elementary 53.5 25.7 0.9
Tuba City High School 40.5 24 .O 0.6
Whiteriver
Alchesay High School
Kayenta
Monument Valley
Indian Oasis 60.6 37.1 1.2
Sacaton 63 .O 32.6 1.1
Globe Elementary
Globe High School
Holbrook Elementary
Holbroo~H igh School
Eloy 12.4 52.4 4.2
Marana Elementary 1.8 32.1 2.8
Marana High School 5.3 26.4 1.9
. ,. . . 1' - 1 ', - f a 2 r ,k
- * \ - ! \ i' ..* :,* # I I 9: rf i 3 5 ( : i t r a :* t q . .: I I*
Source: Annual Report of the State Superintendent of Public Instruction.
Figure 23
SOURCES OF FUNDING - 1973-74
IN PERCENT OF TOTAL
Legend :
Federal State County District Other
(Mostly
Tuition)
Chinle
Tuba City
Elem.
Widow Rock Ganado
Tuba City
H.S. Whiteriver
Alchesay
H.S. Kayenta
Monument
Valley
Indian
Oasis Sacaton
Globe
Elem.
Globe
H.S.
Holbrook
Elem.
Holbrook
H.S.
Eloy
Marana
Elem.
Marana
H.S.
District
Table 24
VALUATION AND VALUATION/STUDENT - 1973-74
(Using 8 months ADM)
Elementary High Total
ADM Includes School Total Valuation Valuation
Grade K at % ADM ADM ADM in Dollars per ADM
Window Rock EL 1,858 I$ 5,374,0001
THS 558
TOTAL 1 2,416 1 I $ 2,224 1
Ganado EL 1,017 7,177,000
THS 327
TOTAL 1 1.344 1 1 5,339 1
Chinle EL 2,475 I 6,553,000 1
THS 77 1
TOTAL 1 3,246 1 1 2,019 1
Tuba City EL 1,288 I 1,054,000 1 819
HS 477 2,212
TOTAL 1 1,764 1 I 598 1
Globe EL 1,775 I 12,708,000 7,160
HS 78 1 16,271
TOTAL 1 2,556 1 1 4,972 1
Holbrook EL 1,302 I 18,03 1,000 1 13,853
HS 51 1 35,316
TOTAL I 1,8121 1 9,950
Whiteriver EL 1,076 I 949,000 1 882
(Alchesay) HS 293 3,24 1
TOTAL 1 1,368 1 I 69 3
Kayenta EL 1,005 I 14,743,000 1 14,665
(Monument Valley) HS 467 3 1,584
TOTAL 1 1,4721 I 10,015 I I I I I
Indian Oasis EL 723 I 420,000
THS 262
TOTAL I 984 1 I 427 1
State EL 323,208 4,469,42 1,000 13,828
HS 127,869 4,253,946,000 33,268
TOTAL 1451,077 1 1 4,476,533,0001 1 9,924 [
Marana EL 1,633 I 41,315,0001 25,298
HS 699 59,131
Sources: Department of Revenue, Division of Property Valuation; Annual Report of the State
Superintendent of Public Instruction.
17,718
4,429
1,657
TOTAL 1 2,332 1
7,046,000
1,423,000
El0 y EL
Sacaton EL
139 1
859
Table 25
VALUATION AND VALUATION/STUDENT - 1974-75
(Using 8 months ADM)
Elementary High Total
ADM Includes School Total Valuation Valuation
District Grade K at Yz ADM ADM ADM in Dollars per ADM
Window Rock EL 1,883 I$ 7,433,0001
THS 56 1
TOTAL 1 2,4441 I$ 3,0411
Ganado EL 1,066 I
8,678,0001
THS 434
Chinle EL 2,9 74 7,317,000
THS 1,103
TOTAL 1 4,0761 1 1,795
Tuba City EL 1,305 I 1,380,000 1,058
HS 658 2.097
TOTAL 1 1,963 1 703
Globe EL 1,655 I 15,545,000 1 9,393
HS 716 21,711
TOTAL 1 2,371 1 1 6,556
Holbrook EL 1,377 I 22,071,000 1 16,028
HS 686 32,173
TOTAL 1 2,063 1 [ 10,699
Whiteriver EL 1,086
(Alchesay) I 1,266,000
HS
1,166
314
TOTAL
4,03 2 1 1,4001 904
Kayenta EL 972 I 15,977,0001
(Monument Valley)
16,437
HS 444 35,984
TOTAL 1 1,4161 1 11,283
Indian Oasis EL 80 1 I 698,000 1
THS 214
TOTAL 1 1,0151 I 688
State EL 342,335 5,118,390,000 14,951
HS 140,044 4,902,2 18,000 35,005
TOTAL 1482,3791 15,127,772,0001 1 10,630
Marana EL 1,820 1 48,908,000 26,873
HS 785
TOTAL
62,303 1 2,6051 18,771
Sources: Department of Revenue, Division of Property Valuation; Annual Report of the State
Superintendent of Public Instruction.
Eloy EL
Sacaton EL
+
I
5,240
I
2,183
1,552
834
8,132,000
1,82 1,000
Figure 25
VALUATION PER ADM - 1974-75
(Using 8 Months ADM)
Valuation ($) per ADM
With the exception of Kayenta, each reservation
district is considerably below the state average in
valuation per student. Kayenta is very close to the
state average. The extremely low valuations per capita
in Indian Oasis, Tuba City and Whiteriver are among
the lowest in the state. The bar chart presentation of
these data (Figure 25) provides perspective to these
contrasts.
Ironically, the extremely limited property tax bases of
some reservation districts have been further narrowed
by efforts of the tribes to improve the situation of
their own people. This situation is in the process of
being finalized in the Indian Oasis District. The
district's total valuation for the 1975-76 year was
originally estimated to be $814,731. This increase of
almost 17 percent over the previous year resulted from
higher valuation placed on mine and utility property.
Despite this, the district wealth amounted to less than
10 percent of the state average valuation per student.
The Papago Tribe is in the process of taking over the
operation of the TRICO Electric Co-op facility which
will remove it from the tax rolls. Trico has been the
largest individual taxpayer in the district. The loss will
amount to $263,223 or 32 percent of the district's
valuation. Last year $63,362 of the district's funds
came from property taxes. The district reduced
spending last year and underspent their approved
budget to avoid confiscatory level tax rates. Further
spending reductions are being evaluated to offset this
latest revenue loss.
The recent history relating to tax rates imposed on the
few taxpayers on the reservation is shown in Table 26.
From these data it is apparent that reservation district
tax rates prior to 1974-75 approximated or were
slightly higher than the state average. The low total
yield from property taxation is reflected in Table 23 as
the district (or local) funding source. Federal funding
in absolute dollars has either remained relatively
constant or has increased slightly. Increased state
support has been realized but not at a rate sufficient
to offset the rate of inflation.
Because of the deficits accrued during the 1974-75
year, horrendous tax rates are now facing some
districts. At Chinle the rate is $45.39. Ganado has a
wte of $18.45. Window Rock levied $17.45. These
substantially increased rates are very discouraging to
industry which might otherwise consider locating on
the reservation. Kayenta's $15.44 rate represents a
single rate for the now unified elementary and high
school districts.
Representatives of the larger taxpayers have tried to
work closely with the school district administrators
and county officials. In some instances they have
loaned equipment, workmen and staff to satisfy
district needs at little or no cost. They continue their
willingness to assist but are extremely uneasy about
the tax ramifications which may result from the
jurisdictional and policy disputes among federal, state,
tribal and local officials.
Greenhouse Activities at Baboquivari High School,
Indian Oasis District. Agricultural training is both
practical and popular at most high schools on the
reservations. Modem farming techniques most
applicable to the specific regions are emphasized and
backed up by shops where the care and maintenance
of farm implements are also taught.
X. GOVERNANCE
The policy-making authorities who have jurisdiction
over Indian reservation schools are more numerous,16
overlapping and more complex than the average public
school. The typical public school district is run by a
school board elected by the patrons. It must follow
the state law and policies established by the State
Board of Education with comparatively limited, though
increasing, involvement resulting from federal
authorities. The reservation schools additionally have
parent advisory committees mandated by federal law, a
multitude of federal agencies which compete,
sometimes openly, with one another and require
compliances which are often contradictory. Legislation
funding Indian education requires that these funds be
expended exclusively for Indian children. On the other
hand, civil rights legislation forbids discrimination by
the school districts. Ironically, most of the contracts
for Indian education include civil rights compliance
paragraphs which specify stiff criminal penalties for
non-compliance. Rather vague guidelines differentiate
between the "legally acceptable" discrimination and
that which is in violation.
'$trengthening Navajo Education, Division of Education, The
Navajo Tribe, Window Rock, Arizona, 1973.
Table 26
DISTRICT TAX RATES
($/$lo0 Taxable Valuation)
Window Rock
Ganado
Chinle
Tuba City Elementary
Tuba City High School
Globe Elementary
Globe High School
Holbrook Elementary
Holbrook High School
Whiteriver Elementary
Alchesay High School
Kayenta Elementary
Monument Valley High School
Indian Oasis
Marana Elementary
Marana High School
Eloy Elementary
Sacaton Elementary
'~istricts Unified
Source: Compiled by the Arizona Tax Research Association, 1814 West Washington Street, Phoenix, from
data received from County Boards of Supervisors who are responsible for setting tax rates based
upon approved budgets.
Figure 26
DISTRICT TAX RATES
Legend:
Unified 0 Elementary High Scllool
District District District
Rate I . . ~ Rate Rate
Window Rock Ganado Chinle Tuba City
Globe Holbrook Whiteriver El./Alchesay H.S. Kayenta E1.IMonument My. H.S.
Indian Oasis Marana Eloy Sacaton
$ 1 W $1c!00
800
600 6.00
4.00 4.00
200 2DO
72/73 73/74 74/75 75/76 72/73 73/74 74/75 75/76 O 72/73 73/74 74/75 75/76
0
72/73 73/74 74/75 75/76
*Districts Unified
Administration of the funding under the
Johnson-O'Malley Act of 1934 (P.L. 73-1 67) until
recently has been through the State Department of
Education, Division of Indian Education. Complaints
have been registered because the State Department has
charged part of its administrative expense against these
funds. The Navajo Tribe passed a res~lution'~as king
to become the Johnson-O'Malley contracting agency on
its reservation and beginning with the 1975-76 school
year, will be empowered to act in this capacity.
Additionally, tribal councils purport to speak for all
Indians on their reservation. Frequently their education
committee attempts to establish policy for education
for the entire reservation. The elected local school
district boards, in opting for local autonomy, generate
policies and programs which are not in accord with
those of the tribal council. The public school patrons
are divided in their opinion of whether the tribes
should control the public schools. Almost 49 percent
opposed in the Kayenta Report,18 almost 40 percent
approved while 1 1 percent expressed no opinion.
State and federal laws and regulations are frequently in
direct conflict. It seems that either inadequate
communications exist between the respective legislative
Metal Shop, Baboquivari High School, Indian Oasis
District. Practical metal and woodworking skills are
taught at almost all reservation school districts.
Building trades, auto mechanics and farm mechanics
are also parts of these popular programs. A major
source of frustration emanates from the lack of jobs
on the reservation. Students must frequently leave
their homes to obtain gainful employment.
17Resolution No. CO-64-73, Navajo Tribal Resolution
requesting that the Education Committee, Navajo Tribal
Council, replace the State of Arizona as contracting agency
for the Johnson-O'Malley Act on the Navajo Reservation.
Adopted October 24, 1973.
18~he Kayenta Report: Values in l n d i i Education,
Southwestern Behavioral Institute, Flagstaff, Arizona,
October 1971.
bodies, or they purposely refuse to acknowledge each
other's jurisdiction. In all of these conflicts the Indian
children are invariably in the middle-the quality of
their educational opportunities are being limited or
jeopardized.
School Board Members
Native membership on local school boards has been
increasing. Of the 38 board members of the eight
reservation schools in this study, 34 are Indians. While
in the minority, the number of Anglo board members
is still disproportionate to the numbers of their race
residing in the districts. Frequently, these board
members are small businessmen or traders who earn
their livelihood on the reservation. Many of them have
taken Indian spouses. Each is generally well liked and
respected by the community. This does not prevent
their positions on the school board from being
resented by both the older Indians and the more
ambitious, young, progressive Indians who are
becoming increasingly politically motivated. Sometimes
bitter resentment is evidenced by