Senator PELL. Thank you very much.

Senator CLARK. I have one final question, Mr. Brownell. Do yo have any material which would be useful to the committee in categori ing the kinds of jobs which would be available in Detroit for thes young people if this title II were enacted into law?

Mr. BROWNELL. I do not have any with me, but I could get it and be glad to provide it to the committee.

Senator CLARK. We would be grateful to you if you would submit a memorandum on that, with any accompanying data that you would desire to submit.

Mr. BROWNELL. I think the committee will realize that, if you start putting youth to work in your municipal agencies, and in your schools. and in your voluntary agencies, there you have the opportunity for thousands of jobs under competent supervision very rapidly.

Senator CLARK. I am sure this is true. But if you could categorize it and make it more specific, it would be helpful to us.

Mr. BROWNELL. Yes.

(The information referred to above follows:)

Illustrative job categories to which Urban Service Corps youth might be as signed are here noted. Each agency wishing to have Service Corps assistants would be expected to indicate the employees on its staff who were capable of and willing to assume the responsibility of having an assistant assigned, supervising his work and reporting his progress. Service Corps youth would be assigned on the basis of indicated abilities from school records and preference where choice of jobs was available. Each assignment would be subject to review and reassignment after a tryout period.

as:

A youth might be assigned as an assistant to a regular employee in such jobs

A. In municipal government departments:

(1) Public health:

(a) Visiting or public health nurses.

(b) Public clinic office or technician staff.

(c) Municipal hospital office, food service, desk service and other personnel.

(2) Parks and recreation:

(a) Recreation leaders.

(b) Parks maintenance crew members.

(c) Information, lost and found, equipment check-out and other service personnel.

(d) Specialists, e.g. animal keepers in zoos.

(3) Municipal offices:

(a) Office manager (for messenger service, telephone or of fice assistant or for learning a variety of jobs depending on the office and the ability of the youth).

(b) Any clerical or other employee whose work would be expedited by an assistant. This might range from stock clerk to tabulating operator, to draftsman to file clerk to auditor, switchboard operator, etc.

(4) Municipal field services:

(a) Meter reader for municipally operated utilities.

(b) Mechanic in municipal garages.

(c) Streets and highway crewmen.

B. In community agencies supported throughout the United Community Fund:

(1) Recreation leaders in Boy and Girl Scouts, C.Y.O., Jewish Welfare, Y.M. and Y.W. programs.

(2) Personnel in family service agencies.

(3) Personnel in agencies providing service to senior citizens, indigents, handicapped.

C. Schools:

(1) Classroom teachers (assistant would help with supplies, keeping of records, messenger service. "vision on playground, or in

lunchroom, wraps, etc.)

(2) Principals, for assistance in school office.

(3) Janitors, engineers and groundkeepers (assistant would learn the job of working with and extending the service of an experienced man.)

(4) School repair and maintenance employees (as with janitor). (5) Central administrative office managers (similar to municipal offices).

(6) Bus drivers (assistant would see that children behaved en route, received greater protection when entering and leaving the bus, would help keep the bus clean and in top operating condition).

(These are merely illustrative.)

In the city of Detroit, where there are 15,000 plus school employees, it is certain that 10,000 Youth Service Corps young men and women could be assigned to work with school employees with very little delay. The schools

would be improved with their help. The youth would be improved by the work experience. An equal number or more could be assigned to municipal and county government employees. The number that could be assigned to the United Community Service agencies and to State government or National Government agencies is unknown, but undoubtedly would equal those assigned to school personnel. It seems clear that all of the services mentioned need added manpower. It is equally certain that we have manpower waiting to be put to work constructively. The Service Corps seems a practical and efficient way to develop the manpower and to make it constructive for our economy as against having it unused, become unusable or worse, yet it is used in ways that are economically costly, dangerous to national security, and humanely wasteful.

EDUCATION FOR THE AGE OF AUTOMATION-EXPANDED EMPLOYMENT OPPORTUNITIES FOR YOUTHS AND ADULTS

The educational crisis in the United States is vast and complex. Under the pressures of the cold war, there has been a marked tendency to think of it too largely in terms of crash programs to build schools, recruit teachers, and prepare students who are most easily identified as academically gifted for future careers as scientists an technicians.

We do need more schools, more and better paid teachers, and more professional talent. We also need, however, a greater awareness of the new educational challenge implicit in automation-and a greater sense of the loss, human and economic, we incur as a consequence of our national failure to prepare millions of our young people for useful and productive lives in an economy marked by rapid technological change.

Year by year, an already dangerous gap is widening between the inadequate education attained by millions of our young people and the labor market's demand for increasingly higher levels of education. All too many young people are dropping out of school without the basic education they need even to train for most employment. The advance of automation and the elimination of jobs requiring heavy physical effort and a minimum of educational background are intensifying our failure to fit a large proportion of our young people for the world of work.

These casualties of our educational system inevitably lose out in competition for jobs with those who have high school diplomas. They tend to become members of a stagnant pool of unemployed who are in danger of remaining jobless even under relatively good economic conditions because of the narrowly limited range of jobs for which they can qualify.

The result is a tragic waste of human resources and a personal defeat suffered by millions of young people in the crucial beginning years of adulthood, when the attitudes and disciplines of a lifetime are being formed.

With few exceptions, the school dropout carries the burden of his handicap through life. A recent study prepared for the Detroit Public Welfare Commission revealed that 216 family heads out of 761 relief recipients investigated were unable even to take employment aptitude tests because of illiteracy. Another 299 took the tests, but could not meet minimum training requirements in 23 occupational categories.

The study concluded that "a substantial number of those classified as employable and presently receiving relief are not capable of participating in retraining programs of the kind thought of to date."

Heavy unemployment among younger persons will be a mounting problem in the 1960's. It is estimated that 26 million young jobseekers will be enter ing the labor force in the 1960's. About 7,500,000 of them will not have completed high school; 2,500,000 will not have gone through grade school.

The economic odds are already stacked against them. The chances are 3 to 1 in favor of high school graduates getting the more satisfactory beginning jobs. As of 1959, the Department of Labor was listing 60 skills in short sup ply; all of them required at least a high school education—and each year educational requirements rise higher.

This neglect and wastage of American youth have not been a secret to the Nation. Educators and employers and Government officials have been aware of it. The trends have been followed and analyzed; they have been projected into the decade of the 1960's, which may well be the most fateful 10 years in our history. All that remains is to move from the phase of analysis to that of correc tive action. It is folly to collect and digest national statistics on a national problem without pursuing national solutions. It is callous folly to blame unemployment on the unemployed when the inadequacies of the educational sys tem and the economic pressure to leave school have conspired to deprive them of job opportunities.

There are three areas of primary concern:

One is the area of elementary and secondary schools, where the basic preparation for life and work begins.

Another is the uncertain transitional period between school and job.

The third lies beyond the first job experience, when the false starts and wrong turnings of the two earlier phases begin to condemn the young to a permanent insufficiency of employment and income.

In each of these areas a vacuum exists today that the proper programs could help to fill, salvaging lives by helping to realize what is now a wasted human and economic potential.

PROGRAMS TO REDUCE DROPOUTS

One basic purpose of such programs would be the same as that of the National Youth Administration during the New Deal-to reduce the economic pressures that drive youth prematurely into the labor market. We propose the establishment of an occupational orientation program for high-school students, financed and coordinated by a Federal Youth Opportunities Agency, but locally administered. Dr. James B. Conant has pointed to the need for improvement in our school guidance and counseling services. Such a Federal agency would be able to foster this needed improvement. A program is needed to link guidance and counseling services with actual part-time work experience within the schools themselves. These and other activities should be carefully selected to assure that there would be no reduction of employment opportunities or undermining of labor standards for adults. Students whose families were under economic pressures making it difficult to maintain children in school until graduation would receive a certain stipend for performing some of the many useful tasks that can be done in and out of school without injecting an element of unfair competition into the regular labor market.

This orientation program would prepare young people for later work experi ence. It would acquaint them in a systematic way with the range of future employment possibilities, explore aptitudes and stimulate interests, and lay the groundwork for a less chaotic transition from school to full entry into the labor force.

TRAINING FOR UNEMPLOYED YOUTH

For the transition period itself, we propose another program for those young jobseekers who have dropped out or graduated but who have not found a suitable place in the economy. Like the earlier Civilian Conservation Corps, this program would offer work in the area of natural resource development and conservation but, in addition, it would provide and place heavy emphasis on suitable training, both of a basic educational nature for school dropouts and of a more advanced and specialized nature for those with enough educational background to learn specific skills.

BASIC EDUCATION FOR ADULTS

The third major need that must be met is that made evident in the Detroit study of welfare recipients, but not limited to them. There are many adults whose basic educational deficiencies condemn them to repeated unemployment and dependence on public assistance. We should devise a program which would enable them to qualify for a wider range of job opportunities. Potential breadwinners should receive a maintenance allowance for family support while they themselves follow a course of instruction to prepare them for more advanced job training and then provide such training in accordance with the forecasts of needed skills which would be made by the proposed National Planning Agency. These programs would make our educational system more relevant to the changing demands of our society, imposed by technological change. They would do much to dry up one of the prime breeding grounds of juvenile delinquency, the swampy area between school and work where millions of our young people in the next decade will be in danger of losing their footing and going astray. This Nation is committed to a philosophy of equal educational opportunity, yet the present inadequacies, both of our educational system and of our economic practices, in effect deny this equality of opportunity to millions of our fellow citizens.

There have been some experimental programs-one of them in New Yorkwhich indicate the tragic loss inherent in our failure to seek out and develop the human potential that lies just under the surface among the children of underprivileged environments.

The programs outlined above can help to eliminate these losses and convert them into hopeful futures for millions of Americans.

Senator CLARK. Thank you very much, Mr. Brownell.

At this point I would like to insert in the record a joint statement by Senators Magnuson and Jackson, of Washington, and statements by Senator Randolph, of West Virginia, and Senator Carroll, of Colorado.

JOINT STATEMENT BY SENATORS WARREN G. MAGNUSON AND HENRY M. JACKSON

Mr. Chairman and members of the committee, we are cosponsors of S. 404 and wish to urge its early reporting from your committee. The YCC is a wellproven program for meeting two important national objectives, healthful training and employment for youth and the advancement of the conservation of our

resources.

The basic financial concept of S. 404 is that it will be funded by using money which we should appropriate for the conservation of our natural resources on Federal lands. The work, however, will be limited to the type which young men can perform efficiently and thus assure that the program will operate properly.

There is no doubt that an extremely wide gap exists between the amount of funds that we are today appropriating for the conservation of our timber, soil, and range and for the development of our recreational facilities on national forests and parks and other Federal resources lands. Therefore, we would like to be completely frank and candid. This program will require the expenditure of funds beyond the amount today being spent.

However, this will be an investment, because we will be building the capital value of an irreplaceable natural resource.

S. 404, through this technique, propses also to make a frontal assault on the significant problems which face far too many of our young people. For a variety of reasons, many of our young men are reaching the age where they should be able to step into gainful employment, only to be inadequately trained. A combination of home and community environment creates a series of obstacles which many of them find difficult to overcome. The YCC would lift what we would consider to be those young men with a greater amount of promise into an environment where they could take full advantage of this opportunity. These boys would learn how to work and at the same time have open to them a picture of some of the fields of endeavor which they might profitably explore. We are convinced that for many of our young people all we need to do is to give them an opportunity and they will demonstrate that they know how to respond. The old CCC program did this, and we know that it did it successfully. The

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old CCC program also advanced conservation work on our Federal lank level it has never since attained. At its peak there were 300,000 pozzz doing useful conservation work on the natural resources of this Nation. Se proposes a corps of 30,000 young men in the first year, raising to a se 150,000 young men by the third year, then continuing at such a level as entit require. Even a corps of 156,000 would be a relatively small part of the y men in the 17-threach-21-year age group. By making this type of prs. available at this time we will provide the broad avenues of opportun y today's conditions require.

We wish to elose or statement by reminding the committee of the post taken in the S6th Congress by the American Legion when they said:

“We believe that the Civilian Conservation Corps was one of the best 1 most profitable projects during the depression years of the thirties. Unquestiltably, the guidance and opportunities provided within that agency served brighten the future of a good many of those who participated in the progSTIE. The same purpose might equally be served in good as well as in poor time.”

STATEMENT BY SENATOR RANDOLPH

Mr. Chairman, before expressing my views on the legislation before us. I would like to reflect my pleasure that you are the chairman of the subconmittee which will have the role of recommending what should be done. I re member well the excellent suggestions you made and which were unanimously adopted when we marked up the Youth Conservation Act of 1960 which passed the Senate that summer.

I am extremely pleased to see the administration sending to the Congress a bill which suggests a broad attack upon the growing problems created by an expanding population and automation. We must look ahead now if we are going to equip our young people to fulfill the role society will require and the challenge which the future presents.

I do not wish to trespass upon the judgment of the subcommittee, for I firmly believe that we must give full consideration and due weight to the advice we receive from the many who testify before us.

May I suggest, however, that we carefully consider whether the purposes of title 1 of 8. 236 can be best realized by making appropriate adjustments in Senate bill 1991. This may well be the place where the balance should be struck for providing retraining for our older workers and meaningful initial training for our young people.

Virle 2 of 8. 266 is also forward looking, for it seeks to provide opportunities close at home in a cooperative program with State and local government public service agencies.

I am extremely interested in what we may do here, and fully recognize the experimental nature of what may be undertaken. I would think it wise to specify that the benefits of title II shall be available only on direct public service programs and that we shall insure that whatever is done complements and sepp'ements the good efforts that some of our local communities have undertaken.

Tule 111 of 8, 2036 provides the framework for a Youth Conservation Corps. but it does not contain either the body or sinew that is found in S. 404. be the bill that passed the Senate, and I may be prejudiced in favor of it.

S. 404
When

1 wote that it is a relatively modest approach to a problem of major dimenstang I come to the inescapable conclusion that we should not throw aside the great effort that went into perfecting this bill.

The broad problem does suggest some change in direction for S. 404. I think we could place more emphasis on education, and provision could be included for educational opportunity upon completion of a normal workweek. Phose young men who enroll in the corps will be school dropouts or youth Who are unemployable because of a lack of skills. Many never have had a real job. Our first responsibility will be to introduce these boys to the satisTactions that come from working.

This will instill a sense of pride, confidence, and, above all, a desire to improve. The Youth Corps will also contribute by making a new environment available Which will enable these young men to better realize their aspirations.