For these reasons, Madam Chairman, I warmly support the provisions of H.R. 7178 which would provide Federal technical aid to State and local agencies for action against juvenile delinquency.

A final factor which is a consideration for many of us is the role that the Federal Government should play in the struggle to combat juvenile delinquency. There can be little doubt that the major attack will not, and in fact cannot, be carried on directly by the Federal Government. It will of necessity have to be accomplished by State and local agencies, of both a private and public nature, which actually deal with delinquency and youth crimes.

The fact remains, however, that the Federal Government has a legitimate and important service to perform in the treatment of juvenile delinquency today. This is a role of leadership; a role to provide the incentive urgently needed and desired by local agencies. I believe that these bills effectively provide for such a role.

Madam Chairman, considering all of these factors, I urge this committee to grant H.R. 7178 speedy approval, for in my opinion this legislation is comprehensive in scope, forward-looking in perspective, and gives real promise of being effective in practice.

STATEMENT BY MANUEL KAUFMAN FOR THE NATIONAL ASSOCIATION OF SOCIAL WORKERS

Madam Chairman and members of the committee, I am Manuel Kaufman, deputy commissioner of the Department of Public Welfare of the City of Philadelphia. I am appearing today, however, for the National Association of Social Workers of which I am a member and on whose commission on social policy and action I serve.

The National Association of Social Workers is a membership organization of 30,000 social workers who are employed in government and voluntary and Catholic, Jewish, and Protestant family service, child welfare, health, recreational, and community organization agencies. Probably several thousand members of our association, and I am one of these, spend our working days with programs concerned with children and youth. A small part, but nevertheless growing number of social workers, are employed in the correctional field as probation and parole officers, in correctional institutions for children, and in various community-centered programs concerned with preventive servicescasework, recreation, and community organization. I think we know something about the psychological, sociological, and environmental factors responsible for trouble-children and youth, and the manifestation of what we call juvenile delinquency.

As members of this committee know, representatives of our association have testified regularly and faithfully on each of the several occasions when the Congress has given consideration to legislation for the prevention and control of juvenile delinquency. Our testimony has emphasized the importance of a threepronged approach to any joint efforts to control and ameliorate the problems of juvenile delinquency. We have said that funds are needed to strengthen and improve State and local programs currently concerned with the prevention and control of juvenile delinquency, funds are needed for the training of personnel, and funds are needed for demonstrations and studies. The legislation considered by the Congress in 1956 and subsequently in 1957 had this three-pronged approach.

I want to make very clear at the outset that our association endorses the pending legislation-H.R. 7178 and similar measures-with their proposals for funds for demonstration and training. In the course of this testimony I will make a few observations that are not intended to criticize the legislation, but rather to indicate some directions in which we hope the application of this legislation would and should move.

Uniquely encouraging and different from the past history of this legislation is the endorsement the President has given to the prevention and control of juvenile delinquency and youth crime by the establishment of a President's committee. This type of encouragement has been missing from Federal approaches to this problem in the past. Encouraging also is the fact that testimony from the secretaries indicate a clear intent to approach experimentally the problems of prevention and control of juvenile delinquency on a community basis rather than through a wide assortment of separate and discrete projects,

each aimed at demonstrating that the recipe of a particular agency or organization contains a unique, almost patented, solution to problems.

This would mean, we believe, that a community wishing to secure Federal help with its problems of juvenile delinquency would have to place its own house in order and demonstrate it can and will go at it on a coordinated basis. For this to happen the political, business, labor, civic, religious, and health and welfare forces of a community must want to act in concert. Securing such an organized rather than the usually disorganized approach would constitute a demonstration of no mean significance and could and should produce a will to succeed.

We need constantly to remind ourselves that we have had the problem of juvenile delinquency with us for a long time, and that many important programs and services have been developed which, while they have laid no claim to a cure-all, have ameliorated and kept within limits, although perhaps not sufficiently so, the scope of the problem. The juvenile courts, probation services, child guidance programs, correctional institutions with special services, protective child welfare services, and a wide range of other activities have been designed and developed to help the troubled child and youth. Over the 50 years or more since the first juvenile court was established, there has been a constant effort to improve established services, to modify them in the light of new knowledge and search out new methods. We have had methods of environmental manipulation and still do. We have used psychological approaches to the problem as these become available, and still do, of course. Now on the basis of sociological-anthropological findings among the youth of our lower income areas, we are moving back to a degree of environmental manipulation by placing considerable hope in vocational training and the provision of job opportunities.

This happens, of course, because there is no single or even a set of definitive recipes for the prevention and control of juvenile delinquency. Perhaps, because of a degree of frustration, we are constantly in search of something new and different with frequently an implied assumption if not a direct statement that what we have been and are doing now is ineffective and useless. This attitude seems to want to throw out the baby with the bath water.

Mr. Norman V. Lourie, the president of our association, in an article in the 1960 yearbook of the association dealing with juvenile delinquency, makes an observation with which, I believe, most persons working this area whether educators, psychiatrists, social workers, court and correctional officials, or law enforcement officers would agree. Says Mr. Lourie, "There is no general agreement as to the etiology or single treatment for delinquency. It is becoming generally accepted, however, that delinquency is not a distinguishable syndrome but is more likely a rather loose evaluative term which covers a wide conglomeration of interpersonal and environmental phenomena."

If this is a fair statement of the situation, it supports the point of view of our association that any efforts by local communities, the States, the Federal Government to prevent and control juvenile delinquency must provide for and recognize the three-pronged approach I talked about earlier. The policy statement on juvenile delinquency of our association in summary form puts it as follows:

1. There needs to be a strengthening of programs and facilities for the treatment and care of youth in trouble which emphasizes individual needs. 2. There needs to be experimentation with new types of preventive services with particular encouragement to social and health agencies to develop imaginative ways to search out and help the youth and his family.

3. There needs to be provision of short-term training of personnel as well as opportunities to obtain professional education in an institution of higher learning.

4. There needs to be assignment of and acceptance of responsibility for effective planning and coordination of programs to serve youth in trouble. Against this background, we would urge then that the demonstration grants authorized in this legislation, while seeking in every way to encourage new types of preventive services, also recognize that any community wide approach will need and require the cooperation and participation of existing services dedicated to children and youth in trouble. As a matter of fact, the demonstration will be directed in substantial part to these agencies. Testimony has time and time again indicated that, in too many communities and States, key services have been neglected and starved-prime illustrations of which are the inadequate quantity and quality of juvenile probation officers and police juvenile officers.

These and other foot soldiers in the campaign to help youth have been held far under strength, untrained, and unequipped. Any community project should dedicate part of its resources to including a strengthening of these services as part of its demonstration. Let us be sure we demonstrate also that we can operate these fundamental continuing programs for youth more effectively for they will be with us when the demonstration project has folded its tents. Some of these resources also might well be dedicated to assuring that services not always associated with juvenile delinquency, such as school social work, are included. Here we have a resource that can and should act as a link between the school and the community.

We welcome this opportunity to support this legislation and to place in the record our convictions of the importance of including as part of the costs for demonstration projects the strengthening and improving of services already established to help youth in trouble. A demonstration project would make an important contribution if it rediscovered for the community that people and youth continue to need help one-by-one. While efforts to ameliorate the environment for youth and provide an easier and more satisfying access to training and jobs-all pointed toward a goal of community acceptance and recognition--are essential, men and youth still need help as persons.

Mr. GIAIMO. The subcommittee stands adjourned.

(Whereupon, at 12:05 p.m., the subcommittee adjourned.)

(The following additional statements and letters were submitted for the record:)

STATEMENT OF HON. JOHN A. CARROLL, U.S. SENATOR FROM THE STATE OF COLORADO

Madam Chairman, I appreciate this opportunity to present the following statement concerning the proposed legislation relating to the prevention and control of juvenile delinquency.

I am a cosponsor of S. 279, the Senate bill which would provide Federal assistance for projects to develop techniques leading to a solution of the Nation's juvenile delinquency problems. This bill passed the Senate on April 12 and is pending before this committee, which is now considering the administration proposals as contained in H.R. 7178.

I was particularly pleased to cosponsor S. 279 as I have every hope that Congress will at last complete action on this badly needed legislation, which should prove to be the beginning of a winning battle to fight the scourge of juvenile delinquency on all fronts. There has recently been such a public outcry against juvenile delinquents that it is inconceivable to me that this situation should be allowed to continue in this great Nation of ours. As I know that every member of Congress is fully aware of the losses (materially and in young, law-abiding citizens) which have resulted from the staggering delinquency increase, I urge that they provide the badly needed funds to aid the States and the communities in an all-out fight against this menace.

To those who are alarmed at what is called "Federal interference," I would stress again the words of the Secretary of Health, Education, and Welfare, Mr. Ribicoff. He pointed out to this committee that it was not the purpose of the administration proposals, as outlined in H.R. 7178, to establish anything in the nature of a supervisory Federal program, but rather to encourage and support pilot programs in the control of juvenile delinquency, which cities and communities could adopt or change to meet their own particular problems as they saw fit.

I firmly believe that we have the means within our reach for winning the battle against juvenile delinquency-if the necessary funds, encouragement, and leadership are provided by the administration, the Congress, and heads of State and local governments. This legislation under consideration would provide money for local government agencies and private groups to help them find out what programs are working; to help them find and train the personnel so badly needed; and to help them carry out existing programs and develop new ones in this field.

In our country the opportunities for positive programs and positive action are unlimited, and I have faith that the American people will respond if a broad campaign is launched for the prevention, control, treatment, and I fervently hope the elimination of juvenile delinquency. This is a challenge which can be met if there is cooperation between governments-both Federal and State; be

tween local communities comprising the parents in the home, church members, and the young people themselves. Cooperation is the keyword here, and I know that, with strong leadership, the people will work together. I can site one example (just one of many) of how a group of Coloradans worked on a project to stem the tide of potential delinquency:

Two years ago the Colorado County Judges Association members came to the conclusion that many delinquent, or potentially delinquent, boys should be removed from unwholesome homes, but that they should not be sent to an institution such as an industrial school. To meet this need they planned a boys' ranch. With the aid of voluntary contributions in cash, in services, or merchandise, the Colorado Boys' Ranch at La Junta became a reality. The miracle of all this is that everything at the ranch was donated. The Rocky Ford Jaycees remodeled one cottage to house 16 boys; the La Junta Bowlers Club turned the proceeds of a grand opening over to the ranch; farmers in the surrounding area donated valuable prize livestock; the local doctors and dentists agreed to take care of the boys' needs; last Thanksgiving Day the collections at several Thanksgiving services were turned over to the boys' ranch. There are many other examples of what these fine American citizens, as a team, accomplished at La Junta, but I won't detail them here. I would say, however, that all who helped in the establishment of the Colorado Boys' Ranch must today feel a great sense of gratification when they reread the resolution adopted by the board of directors 2 years ago. It reads: "Through our faith in our fellowmen and the fervent desire to aid and improve our younger generation-we hereby resolve to give our time, talent, and financial help to this much-needed project and with the financial help from all the people of this great State of Colorado-we must and shall succeed."

The Colorado Boys' Ranch will accept boys of every race and creed, but no one will be sentenced by a court to a term at the ranch. Most of the boys admitted will come from broken homes, and will be youngsters who are just beginning to get into trouble and who will, without help, become delinquents. It was calculated by the Colorado Judges Association that 98 percent of the boys between 6 and 16 who appear before the county courts come from broken homes. Now, most of us know full well that the people who could prevent, or at least control, delinquency are the parents, but we also know that in America today there are millions of parents who do not exercise the proper parental authority. I would hope that some of the projects undertaken through this proposed legislation would be a project in good citizenship through which the young people would have the guidance and direction of adults, and particularly the parents. National awareness and alert community interest in the problems of youth should strengthen the work which logically should stem from the home, the church, and the school.

A final word. Most of us recognize, I think, that the evil of juvenile delinquency strikes at the roots of our very way of life. Democracy depends for its existence upon the intelligent participation of its citizens; in juvenile delinquents we have an ever-increasing number of potential adult citizens who have little desire to take part in activities concerned with the common good; who have little regard for what's yours or mine, for law and order, for property and life. It is estimated today that about 18 million youths are involved in one or another form of delinquency. It was indeed alarming to me to read Attorney General Kennedy's remarks to this committee on July 12 when he said: "If we don't do something. it (juvenile delinquency) is going to be unbeatable in 10 years." I hope the Congress and the people will prevent such a grim prophecy from coming true.

STATEMENT OF HON. DOMINICK V. DANIELS, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF NEW JERSEY

Madam Chairman, as a sponsor of one of the Juvenile Delinquency Control Acts before you this morning, I am grateful for this opportunity to make known my views.

On July 12, 1961, Secretary of Health, Education, and Welfare Abraham Ribicoff presented to this subcommmittee the alarming statistics which chart the course of juvenile delinquency in this country today. Mr. Ribicoff estimated that over half a million juveniles came before the courts in 1960; that this represented a 6-percent increase over the total in 1959; and that a larger portion

of the juvenile population is getting into trouble every year. Indeed, even if current rates remain constant, between 3 and 4 million children are expected to come before the courts for nontraffic offenses in the next decade.

If these figures are frightening, it is because each one represents a frightening loss to the juvenile, to his family, and to his country. Each statistic represents an appalling waste of opportunity, of potential, and of human life.

Although I am hardly an expert in social service, I do know, as a citizen and legislator, that the facilities which exist to deal with this problem are far from adequate. We do not have enough programs, enough trained experts, or enough forward-looking institutions either to prevent juveniles from turning to crime, or, indeed, to rehabilitate them properly once they come before the courts.

Perhaps it might be appropriate to describe a situation which exists in Hudson County, N.J., an area which I am proud to represent here in the Congress. Hudson County citizens have recently been distressed to realize that local narcotics addiction, particularly among juveniles, has been on the increase. A small but significant number of youngsters have somehow been managing to obtain the deadly poison which crushes the hopes and dreams which their families and friends may have had for them.

In the entire eastern half of the United States, there is only one institution— the U.S. Public Health Hospital at Lexington, Ky.—at which addicts can secure treatment. Hospitalization there would mean separation from their homes and families; it would mean an unsuitable environment, at best; and, although I do not know what, if any, psychiatric treatment is available there, I doubt if it is specifically tailored for youthful offenders.

Faced with this situation, the Hudson County prosecutor, Lawrence A. Whipple, took the initiative and set up a special project for the care and rehabilitation of youthful addicts. Madam Chairman, this project is now housed in a wing of the county jail, because there is no other place available. The program itself is limited to less than 20 patients, because of limited facilities. And, although psychiatric treatment is available, it is only because of the gracious generosity of a psychiatrist who is willing to donate her time for a nominal fee.

There are projects like this one throughout the country: pilot projects, which are doing an excellent job which could and should be expanded.

Local efforts such as the one I have described are doing the best they can, 'but they need Federal help and Federal encouragement. They need speedy approval of the juvenile delinquency control bill which is before this subcommittee.

It is perfectly clear, of course, that this measure will not, at one blow, wipe out the scourge of juvenile delinquency. We will have to proceed along several fronts. For one thing, we cannot expect our youth to refrain from antisocial behavior unless we provide them with constructive alternatives. This is why I believe that the Youth Conservation Corps bill, now before the full committee, is equally important. These two bills are companion measures, and I hope they will be approved together in tacit recognition of their fundamental interrelationship.

STATEMENT BY HON. HUGH J. ADDONIZIO, A REPRESENTATIVE IN CONGRESS FROM THE STATE OF NEW JERSEY

Madam Chairman and members of the committee, it is a pleasure to testify in favor of my bill H.R. 2378.

I might open my remarks by referring to an incident which happened Monday night, July 17, in New York City. Let me quote from the New York Times article written by Philip Benjamin:

"MacCombs Dam Park near Yankee Stadium in the Bronx is held to be private 'turf' by youths from the Highbridge housing project a few blocks away * * * "Monday morning some Harlem youths from the Colonial Park project just across the river near the Polo Grounds went to MacCombs Dam Park for baseball practice. The Highbridge youths beat up the Harlem body and ran them out.

"The Harlem youngsters then asked the Harlem Lords for revenge. The gang armed itself with knives, lengths of pipe, baling hooks, baseball bats, tire chains and broken bottles. It had no guns.