paid, as an average, less than truckdrivers, and, consequently, we have to put a little more encouragement as far as youth is concerned into career potentials within this particular area of activity.

Senator CLARK. Is this not something which needs to be taught in the colleges and universities?

Mr. SHARP. You mean courses in this area?

Senator CLARK. Yes.

Mr. SHARP. Yes; and I will say this, Senator, that there is an increasing interest-probably once a month I receive letters from different colleges or universities throughout the country inquiring as to the need for young people in this particular field.

Senator CLARK. I know about one or two of them, but are there a good number of schools of social work where courses are giver in this field?

Mr. SHARP. There are schools of social work. Unfortunately, not too many of them--and I would again refer to an expert in this fieldhave taken any specialized interest in the area of work with the delinquent child. But the social worker is only one aspect.

You have, of course, the first-level line which would be on your undergraduate level. Then your social work on the graduate level, your psychologists on the graduate level, the sociologists on the graduate level.

So you have three or four different disciplines which are involved in this particular work.

The last thing I would like to stress, so as not to repeat any of the previous testimony and also to have it in the record as a matter of emphasis, is this problem of employment of older youth.

In Philadelphia, at the youth study center, we have a little program going on now in experimenting in counseling, which is nothing more than the normal, familiar dinner-table conversation which these children have not had the benefit of, in which ideals and standards are discussed.

It is in no way group therapy. But in these discussions time after time the youths themselves bring up the need for this matter of employment.

One thing that I think is often overlooked is the need of youth for status, the matter of recognition. In one of our counseling sessions we were discussing the problem of the gang activity and the vicious beating of a victim. They didn't know who the victim was.

The victim was an incidental factor.

What was involved there was the status of the individual gang members in their beatings, so that when they got back together they could emphasize that so-and-so gave him more licks and was more vicious than another member of the gang. In other words, the status within a gang was in terms of the intensity of the violence.

Why is that true?

No. 1, they don't have opportunities for positive expression of status. And, No. 2, the amount of idleness.

So we are not only breeding delinquents but we are breeding parasites because good work records are stimulated through work activities as youths.

Senator CLARK. This is going to be an increasingly difficult problem unless we can solve the overall unemployment situation, is it not?

Because these youths are going to be the last to be hired in a community where there is substantial unemployment of older workers? Is that not true?

Mr. SHARP. That is true, Senator, and I would like to make this observation.

Our culture has hemmed in the youth. We have hemmed them in by automation, in which we even sell newspapers by vending machines and we remove the necessity of newspaper boys. We have the automobiles which go to the store, which removes the opportunity of running errands. Our entire culture has hemmed youth in in terms of earning, by odd jobs, that honest nickel, quarter, or dollar, whatever it might be.

The second thing is the expense of normal recreation; attending movies and dances and whatnot has increased, and we have put nothing into this picture.

In addition to that, I am recommending that there should be a project which would involve a thorough review of all legislation affecting youth, especially in this 15 to 16 age group; not for any major revisions but to see whether the child labor laws, the juvenile court laws of course, that is not a national level, but it is in terms of pattern for the State level-the compulsory school attendance laws, which again relate to the local level, and the minimum wage laws, that these be reviewed to see whether there might be a few discretionary factors inserted at some places so that some of these particular problems involved with getting some gainful occupation for these youths might be possible although currently it might be prohibitive under existing legislation.

I don't know, Senator, and I am open to question on this statement, but I do not know that anybody ever sat down and thought of all of the laws together. They thought of them as segments but not all of the laws at one time.

Senator CLARK. I would hazard the observation that youth is in competition with the elderly in many of these fields which you have mentioned, and that the difficulty of obtaining employment for the elderly results in competition perhaps between the elderly and the youth, and that perhaps we need an equal amount of attention at that level in the same sector, although we are only concerned today with the youth angle of it. Nevertheless, it does seem to me it is a problem also.

Mr. SHARP. In addition to that, you have this possibility of compulsory military attendance, and, likewise, you have this lessening of the demand for the unskilled worker. Those are the school dropouts which we have to consider in this particular emphasis.

Senator CLARK. Do you have any observations as to the effect of the draft on the question of prevention of juvenile delinquency?

Mr. SHARP. In terms of being taken into military service, on the basis of the interest of the youth and not as an escape mechanism, I feel that it has real value. I do have the honor of doing some work with the provost marshal division of the military service, and have been very much interested in their success, in the younger members of the military, especially the Army. However, where it is an escape mechanism in which that is the only way that a child is kept from going to an institution, I do not think the prognosis of those cases is nearly as high as if they were able to go in prior to the using of this as a way of getting out of the country.

Senator CLARK. Would you go so far as to say that, more times than not, military service is helpful?

Mr. SHARP. I would say so; yes, sir.

In closing I would just like to say that, to me, this delinquency problem is a social blight. When we have had blights in agriculture, in animal husbandry or in some other areas, we have turned in terms of citizen interest, nationwide, in order to find some solution for it, or control. It is unfortunate that in the area of values in our country our children are not valued as highly as agricultural products or animals.

STATEMENT OF NORMAN V. LOURIE, DEPUTY SECRETARY,

PENNSYLVANIA DEPARTMENT OF PUBLIC WELFARE

Our next witness is Mr. Norman V. Lourie, deputy secretary of the Pennsylvania State Department of Public Welfare.

We are very happy to have you with us, Mr. Lourie. I personally know of your activities and how helpful you have been to us.

For the record, Mr. Lourie was formerly director of the HawthorneCedar Knolls School for Delinquent Boys and Girls. He was the 1951 White House conference leader of the section on "children who rebel." He has also been an organizer and director of the U.S. Army School for Psychiatric Social Workers, and a director of several settlement houses, and the really working deputy of the Pennsylvania Department of Welfare during the last 412 years, during a period when that department has been modernized and given a much more responsible position in the work of the State, and I think he is entitled to a good deal of credit for the substantial success that that department has achieved in that field.

Mr. Lourie, you have a statement. With your permission I will ask to have it placed in the record at this point, and in view of the time factor and the number of other witnesses we want to hear, ask you if you will hit the highlights of it.

(The statement referred to follows:)

STATEMENT OF NORMAN V. LOURIE, DEPUTY SECRETARY, PENNSYLVANIA DEPARTMENT OF PUBLIC WELFARE

Thank you for asking me to testify today about juvenile delinquency. I bring you greetings and views which are shared by our Pennsylvania Governor, the Honorable David L. Lawrence and our secretary of public welfare, Mrs. Ruth Grigg Horting.

Your invitation asked me to discuss proposed remedies. These are many. I will tell you which ones seem to me the most useful and necessary. There is no one panacea for prevention and treatment of juvenile delinquency, mental breakdown, and adult criminality. Religion, economic security, education, and basic social and child welfare services are necessary ingredients operating side by side in every city and hamlet if we are to prevent social breakdown. No one force alone can do the job. I list the most urgent needs in three categories: (1) Strengthening and improving useful programs. (2) Training and recruiting of qualified personnel.

(3) Research and demonstration to prove or disprove current theory and practice and try out new ideas.

In the areas of research problems our attention needs to be centered on the following major concerns:

1. How can we most effectively utilize the combined experience and information of the several disciplines to identify and deal with the basic causes of delinquency? I refer to the fields of social work, medicine, psychology, psychiatry, and others.

2. We must evaluate current techniques employed in the early identification of delinquents and search for more effective methods.

3. We must evaluate our current programs and activities for dealing with juvenile delinquency: recreation and work-camp programs; saturated services and treatment; curfew and other laws involving parental responsibility.

4. Study needs to be made of the degree of relationship existing between delinquency and problems of housing, working mothers, school problems, broken homes, population change, and other such problems.

Characteristics of juvenile delinquents are manifested in overactive, aggressive, and destructive behavior. These are difficult to diagnose, difficult to identify as to cause, have different meanings to different children, and are viewed differently by varying cultural groups in our society. Attitudes of the public and social agencies differ considerably from one section of the country to the other, differ even within different sections of our large cities. On these matters we need much more scientific, qualitative analyses if adequate measures are to be devised to prevent, cure, or diminish the rate of delinquency.

The modes of living in some communities encourage delinquent behavior. What happens when that family breaks down because of divorce, mental illness, adult neglect and criminal offenses, lack of parental guidance and control? There is a real need for study into the reasons for these breakdowns for if we can stop them, we can stop some of the delinquency.

Demonstration cannot always be separated from research. As we try something we believe is sound, we usually learn something more about its usefulness, improve the technique, or reject what is unsound. Of the many things tried on a small scale the following seem to have been of use and should be repeated as demonstration.

Projects aimed at treating the offender centered around the providing of creative work situations in which energies and talents of the child can be directed to creating rather than destroying facilities used by either the local or general public sometimes take the form of camps for forest restoration and protection. Others provide cooperative work situations with local and State departments to create new recreational facilities. This kind of project seems to give the youth a feeling of security and replaces his need for fighting for what he gets with the knowledge that he can achieve a certain level of success, stability, and acceptance in a productive rather than a destructive capacity.

We should experiment further in revising the formal secondary and elementary school curriculums to meet specific needs of youth who show tendencies toward aggressive asocial behavior during the school sessions. The aim here should be to make early identification of the potential delinquent and the training of teachers, guidance counselors, and others in the school systems, to recognize and cope with the problems generated by the child who is frustrated by the school situation. Controlled research on a long-range basis might prove some startling heretofore unknown facts about the potential which exists—and is untapped— in our schools to prevent the diversion of the child's energies into delinquent behavior patterns.

Coupled with this idea is the concept of an all-day neighborhood school to provide constructive, supervised activities for the children beyond the academic day. Already proven of value with young children, perhaps we can expand this approach to include adolescents. Statictics already gathered on such projects show that truancy and vandalism is minimized and that delinquency rates tend to decrease. If this is the case, then perhaps more communities should be encouraged to attempt this approach for an honest evaluation of its effects and benefits.

Many communities have established juvenile police units. Many more need to be convinced of the worth a trained juvenile police officer has in treatment and prevention.

Is the short time spent by the probation officer-once each month-enough to truly aid in the rehabilitation of the offender? Demonstration of good probation practice is very desirable.

Useful programs that I believe should be strengthened and improved include the following:

1. To develop methods for choosing children's court judges by qualifications and to give them special training.

2. To render all probation services through casework agencies by imposing professional personnel and practice standards.

3. To provide courts which cannot afford their own with central statewide or regional diagnostic and classification services.

4. To make the best court effective, long-term community resources are needed. Particularly needed throughout the country are:

(a) The expansion and improvement of temporary shelters for children. (b) Development of more psychological testing and psychiatric diagnostic facilities to give service to the court.

(c) Expansion of public and voluntary community resources for outpatient casework and psychiatric treatment of children known to the court as requiring such help.

(d) Development of group residences and residential treatment homes for teenage boys and girls who cannot return to their families after institutionalization.

(e) Development of more extensive and immediate treatment facilities by existing institutions or in the State hospitals.

(f) Development of adequate vocational and job placement facilities for boys and girls of graduating age both in and out of the school system.

(g) Clarification of mutual resources and the best system of liaison between school and court.

(h) Expansion of foster homes to serve many kinds of children with particular emphasis on facilities for Negro children.

I am in favor, as I examine the several bills under consideration, of S. 694. I favor it not because I believe it represents an overall, complete, and full-blown Federal program in the field of juvenile delinquency, but rather because it represents what we need to do now and what I believe is agreed upon and is possible of achievement. Recently, in testifying before a House committee on a similar bill, I was asked whether the provisions of this bill were all that I believed in or whether I was engaged in the surrounding politics of the several bills. I said then, and I repeat to you, that I do not think it is my place to tell your committee what might or might not be practical from the standpoint of the Congress at this time. However, it seems apparent that in the field of juvenile delinquency we are not going to get a big bite. We may get a little one-and if so, I think that S. 694 is the most effective.

I think it important to say to the Congress through the medium of your committee that it is high time some action is taken by the Congress beyond the exhaustive studies and hearings of these several years. You may be interested to know that these have been so thorough that scholars must look to your records for the juvenile delinquency story in the United States.

To help solve problems involving fewer Americans you have taken much more dramatic action. I cannot conceive of similar amounts of study by the Congress involving the horrifying public reports you have heard on delinquency taking place in the fields of public health, transportation, communication, or even in the treatment of dumb animals resulting in as little firm action as is produced by the juvenile delinquency scandal.

In one sense the newspaper articles and general public clamor about juvenile delinquency have a hollow quality. Citizens cannot rightfully complain or demand justice for a condition which needs only their vociferous support for correction. Public utterings about our concern for children as our most vital possession become repetitive phrases when we view how badly we provide for them.

We need first, of course, to get over some of our archaic concepts about socalled delinquents and delinquency. These are legal and social terms. They do not describe a child. They describe an act, a condition. They are artificial concepts when applied to behavior. A "juvenile delinquent" is simply a child who through phychological, social, or economic maladjustment or insecurity (or some combination of these elements) finds himself at odds with the world.

The community facilities-educational, diagnostic, preventive, treatment— required to help him and his parents, need no less social engineering than we are used to doing for polio, cancer, and other medical conditions.

Federal leadership in this field is of great importance. The Federal Government has already done a great deal. The Juvenile Delinquency Division in the Children's Bureau has given a good deal of technical aid to States and communities but has not had sufficient funds or staff. I hope that the Appropriations Committee will help them to expand. Practically every county in the United States has felt the impact of Federal children's programs through the child welfare provisions of Social Security Act administered by the Children's