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some institutions are also often assisted in finding employment. Engineering is perhaps the best example. With the present shortage of teachers, professors of education have no difficulty in finding jobs for their students. While the universities or colleges do not accept responsibility for the placement of their graduates, many, if not all, spend time and money in helping the young man or woman to find a job. In many cases the subsequent career is followed with interest and assistance is provided in reemployment. Sixty years ago the situation was very different. Concern with placement of college and university graduates was a product of the depression years. The change, I believe, has been important and in the best interests of both the individual and society. For the college graduate who has received a general or liberal education without majoring in a professional or semiprofessional field, many difficulties of finding a suitable job will remain. Still, by and large, one can say at the college and university level a considerable fraction of the youth involved made a smooth transition from education to a job.

When we examine the situation at the high school level, we find quite a different state of affairs. Although in many high schools a half or more of the graduates seek employment immediately on graduation, only in a few cities does one find an effective placement service. And I make this statement without intending any reproach to either social agencies or to guidance counselors. The obligations of the school should not end when the student either drops out of school or graduates. At that point the cumulative record folder concerning a student's educational career is usually brought to an end. It should not be. To my mind, guidance officers, especially in the large cities, ought to be given the responsibility for following the post-high-school careers of youth from the time they leave school until they are 21 years of age. Since compulsory attendance usually ends at 16, this means responsibility for the guidance of youth ages 16 to 21 who are out of school and either employed or unemployed. It is with the unemployed out-of-school youth that I am especially concerned-especially the boys, for whom the unemployment problem is more severe than for girls. This expansion of the school's function will cost money and will mean additional staff at least a doubling of the guidance staff in most of the large cities; but the expense is necessary, for vocational and educational guidance must be a continuing process to help assure a smooth transition from school to the world of work. The present abrupt break between the two is unfortunate. What I have in mind suggests, of course, a much closer relationship than now exists between school, employers, and labor unions, as well as social agencies and employment offices.

There is no question that the school people in the large cities face a gigantic task in their efforts to prepare youth from impoverished homes for useful lives as responsible citizens and productive workers. I have the heartiest respect for the dedicated men and women who with limited means and facilities are doing the best job they can to overcome the adverse influence of the home and street in the big city slum. As one of my associates who had spent the best years of his life as principal of a suburban public high school put it: "I visited junior high schools in New York City in some of the worst areas. I expected to find "blackboard jungles"; instead I found schools with high morale, tight discipline, imaginative principals and teachers." My own visits were largely confined to similar schools in Chicago, Detroit, and St. Louis, and my admiration for what is being done in those cities is equal to that of my colleague for what he saw in New York City.

Not that all problems have been solved. Far from it, as you all know. Reading is the essential tool for success in school and on the job, and although in this area much has been done, much remains to be done, particularly with respect to gaining the interest of the parents in the success of their children, reducing class size, and providing for more remedial reading teachers. Decentralized administration in the big cities is surely a step in the right direction by bringing the schools closer to the people. A new look is needed at vocational programs, especially for the below-average students who are rejected by the vocational people and academic people alike. Much remains to be done for the future dropout to ease the break between school and job. It appears that the only jobs available for unskilled workers in the decade ahead will be in service occupations, a fact of considerable importance in educational planning. As you all know better than I, many of the large cities have made attempts to prepare these youths for work. Adult education courses, work-study programs of various sorts-these are all evidence of a continuing interest of the schools in furthering educational opportunities for out-of-school youth and ought to be ex

panded. Finally, I have been told many times that an important obstacle in improving the education of slum children is the fact that the teachers who may have taught in schools for a number of years with a certain kind of student body suddenly find themselves engulfed by slum children whom they do not understand and for whom they fail to recognize the need for changes in the curriculum. In many cases, a reeducation of the teachers becomes necessary. In short, there is much that schools are doing but much more that they should do. Money in many instances is the key-remedial reading teachers, smaller classes, and guidance counselors cost money. I have already noted the vast disproportion between the amount spent per pupil in the wealthy suburbs and that spent in the slums of the big city.

But even if the schools were to improve their services drastically, there would still remain what seems to me the crux of the situation-the presence or absence of employment opportunity. Whereas I have indicated my conviction that the problems of Negro education are no different from those of all underprivileged socioeconomic groups, the problems of Negro employment are distinctly different. The enforcement of antidiscrimination laws has proved a most difficult undertaking. I have heard it said that only those projects which are supported by public funds can really be operated on a truly nondiscriminatory basis. Therefore, it seems to me that unless local management and labor take up the challenge, it may be necessary for Congress to appropriate funds for public work programs to alleviate the problem of unemployment among youth 16 to 21 in the large cities. In view of the past discriminatory employment practices by both management and labor, action at the Federal level may become a necessity. Even if there were no discrimination, it might become a necessity if the private sector of the economy is unable to provide sufficient jobs.

In conclusion, let me repeat my sense of shock as I contemplate conditions in our big cities with respect to youth in slum neighborhoods. The problems are the result of a social situation the roots of which run back to the days of slavery and the result of an economic problem which is in part a reflection of the total unemployment situation and in part a result of racial discrimination among labor unions and employers. To improve the work of the slum schools requires an improvement in the lives of the families who inhabit these slums, but without a drastic change in the employment prospects for urban Negro youth, relatively little can be accomplished. I close by urging that our large city problems be analyzed in far more detail than in the past and with a far greater degree of frankness. Neighborhood by neighborhood we need to know the facts, and when these facts indicate a dangerous social situation the American people should be prepared to take drastic measures before it is too late. I wish this conference all success as it tackles this extremely urgent and perplexing problem of unemployed, out-of-school youth in our large cities.

STATEMENT BY GENERAL FEDERATION OF WOMEN'S CLUBS

The General Federation of Women's Clubs, which was chartered by U.S. Congress in 1901, has more than 15,000 clubs in the 50 States and the District of Columbia. The membership is composed of women who are homemakers and number in the millions of American women.

The fact that these clubwomen are homemakers, and most of them are mothers, naturally makes them interested in the problems concerning children. Their basic interest is then, the welfare of the family.

The problems of delinquency today are appalling and it is evident that local governments cannot cope with these problems. Therefore, it is very evident that the Federal Government must provide assistance to State and local governments to combat the present trend of increase in juvenile delinquency and the resulting crime activities of the youth of our country.

The General Federation has many resolutions passed at national conventions which set out the need in various areas for "cooperation of public and private agencies serving the community for the health, welfare, and security of children." The General Federation saw the need for special attention and care for children as early as 1904, when they passed a resolution to urge the creation of a Children's Bureau, which was established in 1912. The clubwomen felt this Bureau would be "an agency to unify and strengthen the nationwide effort to promote the welfare of children."

The Children's Bureau has done a magnificent job in its effort to meet the needs of children. However, today there is a grave need for a very special program for those children and youth who are fast becoming a menace to our society because of the delinquent tendencies. The general federation has long urged an expansion of research programs on growth and development of the children and youth of our country.

This organization specifically points out in another resolution that special juvenile courts and detention facilities be provided for juvenile delinquents and further provides that provision of trained and skilled personnel be provided for youthful offenders.

The General Federation has urged Federal legislation to curb mass media when it could affect the morals of the children and youth, and has urged punishment of those who send into the homes pornographic and salacious materials to children through the mails.

We tell you of the above resolutions so that we may register the scope of interest of the General Federation in the welfare of the children of our country. We are all aware of the problems of the fact that juvenile delinquency and crime are at an alltime high and that something effective must be done without delay. The following resolution, in a general way, sets out the importance of legislation to help curb the present trend in delinquency. It also shows how long the General Federation has been concerned about this problem.

"CHILD WELFARE

"(Convention, 1904, reaffirmed, 1952)

"Whereas the General Federation of Women's Clubs always has maintained that the safeguarding of childhood is essential to the welfare of the Nation; and "Whereas the General Federation of Women's Clubs has approved the principle of Federal, State, and local cooperation for the safeguarding of childhood: Therefore

Resolved, that the General Federation of Women's Clubs urges cooperation with public and private agencies serving the communities for the promotion of health, welfare, and security of children."

It is evident to everyone interested in the subject that the necessity for welltrained personnel to work with children that need special care is vital to the control of delinquency and crime among the youth. Furthermore, proper facilities are essential if a good job is to be done. All this will require funds. We believe it is necessary to do an extensive job in research, training personnel, proper handling in juvenile courts, and the tremendous task of rehabilitation. This, of course, means adequate funds to do a thorough job. Many and perhaps most States do not have the necessary available funds. Therefore, Federal funds are necessary to safeguard the welfare of the children because this is essential to the welfare of our Nation.

The General Federation does not pretend to know just how much money is needed to do an adequate job to take care of this problem, but we do know it is necessary to have sufficient funds, for less than enough would be waste and the taxpayers would be paying for a job half done.

The General Federation urges that legislation which will be adequate for the problems of delinquency, which in turn is "essential to the welfare of our Nation," be granted.

Mrs. GREEN. The committee will stand adjourned until tomorrow morning at 10 o'clock.

(Whereupon, at 12.30 p.m., the subcommittee recessed, to reconvene at 10 a.m., Tuesday, July 11, 1961.)

JUVENILE DELINQUENCY CONTROL ACT

TUESDAY, JULY 11, 1961

HOUSE OF REPRESENTATIVES,

SPECIAL SUBCOMMITTEE ON EDUCATION
OF THE COMMITTEE ON EDUCATION AND LABOR,

Washington, D.C. The subcommittee met, pursuant to recess, at 10 a.m., in room 445, Old House Office Building, Hon. Edith Green (chairman of the subcommittee) presiding.

Present: Representatives Green, Giaimo, Brademas, and Quie.

Mrs. GREEN. The special subcommittee will come to order to continue hearings on the administration bill concerning juvenile delinquency prevention and control, H.R. 7178, and an identical bill introduced by Congressman Brademas of Indiana.

The first witness this morning is one who, from his official capacities, can give us a great deal of information in regard to this legislation. We are delighted to have you, Governor Lawrence. Governor Lawrence was the former mayor of Pittsburgh and I understand was serving his third term when he was elected Governor of Pennsylvania. I also am advised that he took a very leading part in establishing the juvenile court system in the Pittsburgh area, Allegheny County, if my Pennsylvania geography is correct.

Governor, the entire subcommittee is anxious to hear what you have to say. I am sure your information will help us to formulate legislation in this area.

STATEMENT OF DAVID L. LAWRENCE, GOVERNOR, COMMONWEALTH OF PENNSYLVANIA; ACCOMPANIED BY NORMAN LOURIE, DEPUTY DIRECTOR, PENNSYLVANIA DEPARTMENT OF PUBLIC WELFARE

Governor LAWRENCE. Thank you, Madam Chairman, and members of the committee.

First of all, I want to thank Representative Green and the members of the subcommittee for this opportunity to present my views on juvenile delinquency, and to represent the interests in this matter of the Governors' conference. It is gratifying to me to see the Congress and the administration giving major attention to this serious problem. I earnestly hope that positive action results from your deliberations and that H.R. 7178 will be passed.

Pennsylvania has 11.3 million people. Of these, about one-third are children or young people and approximately 2,500,000 are of school age. Our patterns of industry, including agriculture, have been changing for some time, and we are undergoing many shifts of

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