Telling School Tales: Rural School History Research
Casey Thomas Jakubowski
In 1998, my first teaching position in Little Valley Central School District in Cattaraugus County New York, as a social studies instructor led to a career exploring the nooks and hollows of educational history across the Empire State (Jakubowski, 2020; 2023). The former school district is part of the Appalachian region of New York State, which includes 14 counties from Lake Erie to the Catskills. This district was undertaking an annexation study, or school district reorganization attempt in my first year. I knew nothing of these events, and was unaware that there was a nearly 100 year history of rural school reform focusing on creating more urban-like schools in rural areas (Jakubowski, 2020). The first major community activity surrounding a reorganization, or merger is the Boards of Education voting to undergo a study. After the districts are presented with the study, the Board then votes to accept the study. If this passes both boards, it is sent to the community in a non binding, or advisory vote (straw). When the straw vote passed in both Cattaraugus and Little Valley, people began to protest outside the school every morning and evening, to “save the panthers” or to “save the heart of LV” as I remember the sign read. My students were pulled from extracurriculars by their parents in order to protest the potential merging of the two districts, Cattaraugus to the north, and Little Valley, a one building K-12 district with just under 300 students. When the “binding vote” happened that year, and the Cattaraugus community defeated the proposed measure, we wondered, “What next?”
I left the district that fall, to move to central New York, and once again, a school centralization impacted my life. A family member’s teaching position was abolished, because the five year moratorium had expired. After a few resignations and retirements, the family member was once again employed. This is an all too unfortunate reality across Appalachia’s schools, as decreasing population, and wealth decline usually results in less money for school budgets, and personnel. I was once again wondering “What next?” This time, I used a Masters level research paper (unpublished, 2004)[1] to begin to pursue what has been a twenty-year scholarly chase through the rural, upstate, and state education department policy of recommending schools which are, according to the 1947 and 1958 Master Plan for School District Reorganization, too small to produce efficient, or effective programming for their children[2]). I also learned that New York State’s policy towards rural districts is as Fulkerson & Thomas (2019) describe it “urban normative” or the urban areas are the norm, and should be promoted as an ideal form of local government.[3] So I dug deep, and researched cases of successfully undertaken and defeated centralizations, or consolidations, or mergers, or reorganizations.[4] The history of why so many reorganizations failed post 1960 became an obsession. I learned from my pursuit of the 20th and 21st century of educational history of New York two major tracks: most educational historians write on the early period (founding of New York as a colony to just after World War I) and second, the state’s citizens have experienced some major fights with the state bureaucratic system in Albany over really basic issues of democracy, local control, and what citizenship means.
Telling tales out of school, as the title implies is often thought of as a negative, and uncivilized approach, yet I view these two tales, about Kiantone and Morganville, as critical, and very necessary to explain some of the basic urban rural divide of New York State, and further the rural anger deployed at government, which observers believe is current, but is actually rooted in Post World War II actions by the the State Education Department.[5]
The State of New York has, as Tracy Steffes writes in her seminal work, been interested since the late 1800s in “reforming” rural schools through strategic aid packages to develop longer terms and more “professional” schools in rural areas.[6] Thomas Mauhs-Pugh described how the local school governing boards were once held as exemplars, because they created “12,000 little republics” that taught governing principles at the local level.[7] Benjamin Justice combed the archive to discover how religious governing practices amongst local Board of Education members often resulted in appeals to the State Education Department.[8] Heffernan’s article on the conflict between State Education Department expectations for school facilities and local board’s realities describe how dissonance started in the early 20th century between the professionals and the public.[9] Chiles’ work on Progressive era school reform describes how Gov. Smith undertook school reform in rural areas as a signature effort among his governorship, and later presidential aspirations.[10] Loveland’s dissertation on the transition between the State Superintendent for Education to the University of the State of New York’s Commissioner of Education and President is a landmark in describing how the first three leaders at the newly created State Education Department had created a policy of rural school reform[11]. As Parkerson & Parkerson wrote in the crucial book on rurals school reform, the “ABCs” or Assessment, bureaucracy and consolidation, have haunted, especially in New York, rural schools who try to survive in the midst of population decline, decreasing wealth, and state policy which relies on a long standing deficit narrative, which Biddle & Azano expose as more than 100 years old.[12]
Having learned about the New York Master Plan for School District Reorganization (which is still in effect in 2023) I began to explore areas close to where I was living at the time, namely Genesee County, and discovered a huge gap in my understanding of the creation of the present day accepted “Central School Districts.” Many New Yorkers take for granted these post-Depression era created districts, many of which did not assume final form until the midst of the Cold War. These often hyphenated schools recall a vague history, or “mystic chords of memory” as Kammen would call it,[13] of the past, prior to the baby boomers (post World War II) entering school and gaining an affiliation as members of those relatively newly created schools. As Osterude describes in a profound work on the Broome County area, identity, and affinity moved from community to the newly created school districts, often built outside of town, and the social hub of the area.[14] Yet I know from my own experience (auto ethnographic history?)[15] the process must not have been smooth, or why would perfectly rational people hold so closely to an identity or mascot, as much of the national research claimed was the reason centralizations/ consolidations/ mergers are defeated?
Seeking to understand school history, as Carol Kammen, or David Kyvig[16] calls “nearby history” led me to the Genesee County Archives, where I discovered the Morganville Question. At the bottom of the Byron Bergen Central School District 1958 Master Plan entry was a footnote, which caught my attention:
By alteration of boundary, effective Sept. 17, 1951, all of the property in the Town of Stafford, formerly C2 Stafford, was transferred from CS 1 Byron to CS 1 Le Roy. (p. 301).[17]
After meeting with the Genesee County historian, and reading the records from the New York State Archive on the town of Stafford, I went to the town historian, and museum and learned a bit about this “school tale.”[18]
Stafford 2, Morganville, was one of the wealthier common schools in the area. A community with a pottery manufacturing center, and a two room schoolhouse, the community provided a grade 1-6 education to their children. In a tuition agreement very common until the creation of centralized school districts, and the birth of a semi modern high school in each C.S.D, Morganville partnered with South Byron by sending their secondary students for instruction. When the Centralization petition was launched, the Stafford 2 district residents overwhelmingly voted no, and wanted to maintain their two room schoolhouse, and independence. In records, memos, telegrams, and newspaper reports of the time period, the fight between Morganville (Stafford 2) and SED heated up, and became a back and forth with the end result of the community locking the South Byron Board of Education employee teacher out of the building. The parents refused to send their children.[19] The local school district superintendent, who is a field based representative of the commissioner of education, was on the side of the Stafford 2 (Morganville) representatives.
The archival records in Genesee county, and the State Archives in Albany record the back and forth memos and telegrams of the bureaucracy and the local residents trying to enter into a positive, less public solution. What became the clue to a second quest was a note on one of the memos from senior SED officials to the bureau and the local superintendent: “We do not need another Kiantone.”[20] More on Kiantone below.
What finally concluded the “Morganville question” was a bit of bureaucracy, and the intervention of a neighboring district. LeRoy, a larger village in Genesee County, had a well developed secondary school, as befitting an Erie Canal town home to the creators of Jell-o. The leaders of LeRoy offered free transportation and free tuition for schooling to any family in Stafford 2 who could transport their children to the boundary line. Using this subtle recruiting technique, the narrative from Morganville changed from “independent” to “LeRoy” as their demands for a school centralization destination. In one of the communications between the Morganville leaders and SED, the justification given for the break in the previous relationship with South Byron was the expectation of a better quality of secondary education for children at the LeRoy schools. South Byron was, in the opinion of the Morganville leaders, too small and not robust enough.[21]
The bureaucratic support arrived in the form of the New York State Thruway Authority, and its construction of the mainline branch from Buffalo to Rochester. The layout of the Eisenhower Interstate system, a divided, limited access highway modeled on the autobahn, was a technology and transportation revolution in the United States post World War II. As the Morganville community and the State were seeking a solution to the “question” of where would the children attend school, the Thruway authority indicated that the disruption caused by construction of the thruway and the needed overpass bridges for state and local routes would be a long term logistical problem for Morganville Children to attend South Byron. The authority provided the State Education Department face saving “cover” to move Morganville (Stafford 2) student population to LeRoy. The Morganville residents celebrated a win, and the State Education Department reaffirmed that the Master Plan was a voluntary policy, and the districts presented in the plan were recommended[22].
This situation was very different than just five years prior, where the Kiantone community south of Jamestown, in the Northern Appalachian region, experienced the wrath of State Education Department, while participating in a “farmers rebellion” that brought to the fore questions of democracy, local self determination and the international questions of communism, and totalitarianism post World War II.
Just south of Jamestown, of the “outlying” urban areas of New York State in the mid 1800s, Kiantone was a farming community along the Kiantone creek, with early settlers engaging in what Fox calls resource clearance in the areas of lumbering and then farming. The Kiantone residents erected seven Common Schools as part of the State enabling legislation. As Jamestown to the north, the residents began a long term tuitioning partnership with the secondary academy in Jamestown. Through World War I, and then World War II, the region provided significant material and manpower, and as a local furniture manufacturing hub in Buffalo, became a large urban center devoted to consumer products, and then the war efforts. At the Fenton- Chautauqua County historical society, the story of Kiantone is well known, and is a special area to the research people, because it represents the hypocrisy of national policy and local actions.[23]
During World War II, the Rapp-Coudert commission was charged by the New York state Legislature with rooting out communists among college professors in New York City. It also became the leading committee examining how to create a more efficient and effective public school system, with a focus on rural districts. After the New York State Board of Regents inquiry into the condition of public schools in the 1930s, at the height of the Great Depression, the report concluded that rural schools were extremely inefficient, and ineffective. Prior to the centralization movements of the 1930s-1970s, New York was home to a large number of smaller common schools, offering grades 1-6, and or tuitioning children out to neighboring districts. The Master Plan for School District Reorganization reported that in 1930, there were over 10,000 districts in New York State. By 1945, there were just over 5,000 (today, there are just under 700). At the secondary or 7-12 levels, parents would send children to villages based or academies for a secondary education focused on the Board of Regents curriculum and end of course exams introduced just after the Civil War, as Beadie describes. The Rapp Coudert commission established minimums to ensure efficient and effective spending on public education in the state. The commission, under the guise of a voluntary or recommended reorganization plan of 1947 (p. 18) created an organized plan to ensure that proposed districts would meet minimums in grades 1-6 and 7-12. Those minimums include 1500 dollars for elementary programming and 1800 for secondary expenditures. The minimums for pupil enrollment recommended at least 1000 students in a district.[24] As these recommendations emerged during the World War II era (1941-1945) the final report and “Master Plan” was released in 1947.[25] As the Master Plan was established, residents in each proposed district could submit to the local District superintendent of schools a request to begin the centralization process. Kiantone, with its long standing relationship to Jamestown, had been included in the Frewsburg Central School District proposed area. After some initial negotiations, one of the Kiantone schools was moved to Jamestown,[26] but the rest were included with Frewsburg.
Trustees of the Common Schools, and residents, vigorously opposed this arrangement, and felt, at the minimum, two major negatives precluded their inclusion with Frewsburg. First, the long relationship with Jamestown was primary. Second, the program in Jamestown was far superior to Frewsburg offerings. The Common School trustees in Kiantone refused to turn the key to the school over, and in August of 1948, the attorney for the Frewsburg Central School, accompanied by a “Phalanx” of New York State Troopers “crashed into a human barricade “ (Jamestown Post Journal, August 24, 1948).[27] A scuffle resulted, with a World War I veteran, who was waving an American Flag, pushed to the ground. In the ensuing media coverage, comparisons with John Paul Jones, a demand for the House Un American Activities Committee to investigate, and a comparison to the totalitarianism of the USSR and Germany were published. Investigations were launched by the American Legion and the New York State Grange into the incident, and then the State Education Department’s response. Deputy Commissioner Jeru, interviewed by the Post Journal, was rather harsh, and described the residents of Kiantone as self-serving, and neglectful of their children’s future.[28] Commissioner of Education Franscis Trow Spaulding, in speeches, referenced troublemakers in rural areas, who did not see the bigger picture of centralization and the need to create more and better training opportunities[29]. Mrs. Potter, of the area, an Albany Normal School trained librarian, became the spokesperson for the community, and led statewide hearings, rallies, and pressures which resulted in some seismic shifts to state law and policy. First, the Kiantone residents created a private school, and the State Appeals court in Buffalo ruled that private, non organization sponsored schools were legal. This legalized schools unaffiliated with formal organizations, such as religious groups to operate. Second the process was altered (after Morganville) so that a majority of voters in the individual, in existence schools were needed to authorize the centralization or consolidation. This home rule precedent was crucial in the slowing down of enabling consolidations.[30]
The story does not end here, as many districts in the Northern Appalachian Region area of New York have experienced this pressure to reorganize, centralize, or consolidate. In every county, districts have faced pressure to examine consolidation. The ongoing drumbeat of efficiency, and effectiveness from the State policy and political leadership is often matched by local and regional media opinions that “bigger is better.” Yet in large urban districts, “smaller is successful” has been supported by politicians, philanthropists, and others. Why this dissonance? As Fulkerson & Thomas have pointed out, the schema of many policy makers supposes that urban is normal, cities are the way, and rural isn’t worth support or investment.
These two examples of school district reorganization, whose stories exist in local archives, which to this point, have not been extensively researched, help fill a research gap into the rural rage and distrust of state officials. The two examples provide a demonstrable dissonance between the words, deeds, and actions of the United States government towards democracy overseas, and the internal state government downplaying local communities concerns that their rights were violated and should be subjected to state level bureaucratic planning. No wonder rural residents in New York view state government promises as fleeting and empty.[31]
I would, in this short essay, recommend that scholars, students, and the curious examine these smaller, more local archives as sources of interesting, compelling, and frankly subaltern histories that do not mirror the narrative which explains the creation of our now taken for granted local governing structures.
References
Primary Archives:
Fenton Historical Society of Chautauqua County. Kiantone history files. Jamestown, NY
Genesee County historical society. Local history files. Batavia, NY.
New York State Archives. Education Department Bureau of School District Organization. File B0477. Albany, NY.
Secondary sources:
Biddle, Catharine, and Amy Price Azano. “Constructing and reconstructing the “rural school problem” a century of rural education research.” Review of Research in Education 40, no. 1 (2016): 298-325.
Chiles, Robert. “SCHOOL REFORM AS PROGRESSIVE STATECRAFT: EDUCATION POLICY IN NEW YORK UNDER GOVERNOR ALFRED E. SMITH, 1919–1928.” The Journal of the Gilded Age and Progressive Era 15, no. 4 (2016): 379-398.
Fulkerson, G. & A. Thomas. Urban normativity. Lexington, 2019.
Heffernan, Karen M. ““Much more chewing”: a case study of resistance to school reform in rural New York during the early twentieth century.” Paedagogica Historica (2021): 1-19.
Jakubowski, C. Rural school consolidation: A case study. Unpublished seminar paper, SUNY Binghamton, 2004.
Jakubowski, C. Hidden Resistance. Unpublished PhD Dissertation, SUNY Albany, 2019.
Jakubowski, C. School Consolidation. New York State Archives Magazine 20.1, 2020.
Jakubowski, C. A Cog in the Machine. Alexandra, VA: Edumatch, 2021.
Jakubowski, C. Rural Education History: State Policy Meets Local Implementation.Lexington, 2023.
Jakubowski, C. Schooling for a Fight. Lexington Press (expected publication 2025).
Justice, Benjamin. The war that wasn’t: Religious conflict and compromise in the common schools of New York state, 1865-1900. SUNY Press, 2009.
Kammen, Carol. On doing local history. Rowman & Littlefield, 2014.
Kammen, Michael. Mystic chords of memory: The transformation of tradition in American culture. Vintage, 2011.
Kyvig, D. et al. Nearby History: Exploring the Past Around You, 4th ed. Lanham, MD: Rowman & Littlefield, 2019.
Loveland, Fred Gerald. Victor M. Rice and Andrew S. Draper: the origins of educational centralization in rural New York State. State University of New York at Buffalo, 1993.
Mauhs-Pugh, Thomas J. “12,000 Little Republics: Civic Apprenticeship and the Cult of Efficiency.” New York History 86, no. 3 (2005): 251-287.
New York State. Master Plan for School District Reorganization. Albany, 1947
New York State. Master Plan for School Districts Reorganization. Second Ed. Albany, 1958.
Osterud, Nancy Grey. Putting the Barn Before the House. Cornell University Press, 2012.
Parkerson, Donald, and Jo Ann Parkerson. Assessment, bureaucracy, and consolidation: The issues facing schools today. Rowman & Littlefield, 2015.
Spaulding, Francis Trow. Addresses and Papers of Francis Trow Spaulding ,President of the University of the State of New York and Commissioner of Education from July 1, 1946-March 25, 1950. University of the State of New York, State Education Department, 1967.
Steffes, Tracy L. “Solving the “rural school problem”: New state aid, standards, and supervision of local schools, 1900–1933.” History of Education Quarterly 48, no. 2 (2008): 181-220.
[1] Jakubowski, 2004 (SUNY Binghamton, History Department Masters presentations).
[2] NYSED, 1958
[3] Fulkerson & Thomas, 2019
[4] Jakubowski, 2019
[5] Initial findings presented at multiple Researching New York Conference and Jakubowski (2025)
[6] Steffes, 2008
[7] Mauhs-Pugh, 2005
[8] Justice, 2009
[9] Heffernan, 2021
[10] Chiles, 2016
[11] Loveland, 1993
[12] Parkerson & Parkerson, 2015, Azano & Biddle, 2016.
[13] Kammen, 2011
[14] Osterude, 2011
[15] Jakubowski, 2021
[16] Kammen, 2014; Kyvig, et al, 2021.
[17] NYSED, 1958
[18] Genesee County historical society, Batavia, NY. Local history files. NYS Archives, Bureau of District Reorganization files.
[19] See footnote 18
[20] See note 18
[21] See note 18
[22] See note 18
[23] Fenton Historical Society, Kiantone School Consolidation files, Jamestown, NY.
[24] Reports of the New York State Legislative Commission (Rapp-Coldert Commission, 1941-1945)
[25] New York State Master Plan for School District Reorganization, 1947.
[26] Master Plan, 1947 p. 107 & 122.
[27] Fenton Historical Society, Kiantone File, Newspaper clippings.
[28] See note 27
[29] Spaulding, 1967
[30] See note 27
[31] Jakubowski, 2019
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