and rehabilitate juvenile delinquents, but I believe testimony before this committee indicates that the problem has increased, not decreased during the 7 years.

I have reviewed my statements made in 1954 and I feel that they are still pertinent. From the report of the subcommittee I should like to quote these two or three paragraphs:

Dr. Brownell stressed the fact that "the school is related to juvenile delinquency in three ways: it may produce delinquency; it may help to prevent delinquency; it may deal with delinquent behavior that is encountered within its walls."

The manner in which Dr. Brownell viewed the schools as contributing to delinquency was through school conditions which frustrated some pupils or through situations causing delinquency by failing to supply an interest, a release of tension, or a sense of security or satisfaction which children need. He stated the three reasons for these conditions were the following:

(1) Some teachers are not properly prepared to detect the needs of pupils who should have special attention or to meet these needs;

(2) Many teachers are not given time to know pupils as individuals;

(3) Many teachers are not given special assistance to deal with problems which they recognize but do not know how to treat.

Dr. Brownell proposed four measures to correct this situation:

(1) To give each teacher a group small enough so that she can know and teach them as individuals;

(2) To provide adequately prepared teachers who understand how to work with children and youth, who are interested in working with and helping them, and who have demonstrated their ability to work constructively with children;

(3) To provide some specialized staff to help teachers with the special problems involved in learning, recording, and interpreting the characteristics of each pupil and his home and neighborhood. Psychological, medical, and social services to deal clinically or otherwise with youngsters needing care beyond that which the teacher and principal can provide are also needed;

(4) To unite parents and school leaders in support of school programs and procedures which seek to solve the problems of delinquency at their roots.

I was pleased to note that this bill proposes to help train leaders, which would be of assistance to teachers, that it proposes to take other means that would all contribute to the work of the school in its prevention of delinquency and if I may make one other point, I would say that we have studies that have been carried on in Detroit and elsewhere which show that it is possible to have the proper conditions in the schools, and that can enlist the help of your various agencies in the community to reduce the number of juvenile delinquents in an area, compared with an area that does not have that kind of service.

So that I think we do have evidence, clear evidence of the fact that the prevention of juvenile delinquency does depend on these conditions that I have mentioned to a certain extent.

Mrs. GREEN. Dr. Brownell, if I might interrupt here, can you provide documentary evidence of this, or studies that have been made over a long enough period of time?

Mr. BROWNELL. I think I can do that. The study I have in mind was under a grant, I believe it was by the HEW, and was called the School Community Project in Detroit. I think a report on that was made within the past year and I will try to get it to the committee. Mrs. GREEN. That will be fine.

Mr. BROWNELL. Now, I would like to direct attention to the special problems of the large cities as they relate to juvenile delinquency and its prevention, and to the type of project or program which would, I

believe, be appropriate to receive high priority consideration under this bill.

At a meeting on unemployment of youth held in Washington, D.C., in May of 1961, Dr. James B. Conant made these statements:

In a slum area where over half the male youth are unemployed and out of school

and that happens to be Detroit—

we are allowing a grave danger to the stability of our society to develop. A youth who has dropped out of school and never has had a full-time job is not likely to become a constructive citizen of his community. Quite the contrary. As a frustrated individual he is likely to be antisocial and rebellious. Some of this group of youth will end as juvenile delinquents. No one would claim that providing full employment for youth in the large cities would automatically banish juvenile delinquency, for we all realize that the causes of this problem are complex and there is no one solution. However, I suggest that full employment would have a highly salutary effect. Moreover, I offer the following hypothesis for professional social workers and sociologists to demolish; namely that the correlation between desirable social attitudes (including attitudes of youth) and job opportunities are far higher than between the former and housing conditions, as measured by plumbing facilities, heating, and space per family. Leaving juvenile delinquency aside, the existence of gangs of unemployed out-of-school youth in some neighborhoods of our large cities creates social problems acute enough by themselves. The adverse influence of the "street" is largely a consequence of the existence of these gangs. I doubt if anyone familiar with a slum district would deny that, if all the male youth by some miracle were to find employment, the social climate would remain, gangs might not wholly disappear, but the whole attitude of the neighborhood would alter in such a way as to make more effective the teacher in every classroom.

Unemployment is bad anywhere. Adult unemployment is grievous because it usually involves the loss of support for an entire family. In rural areas, towns and small cities, one might say that solving the unemployment of adults has the top priority; unemployment of youth may be pushed aside by some people as relatively unimportant. But in the slums of the largest cities I would say the drastic reduction of unemployment of male youth under age 21 is a greater need.

And with this I am in full agreement and I comment on it because I think that the problem we face in the large cities in reference to juvenile delinquency is influenced to a very considerable extent by the fact that we have a large amount of youth unemployment and those unemployed youths contribute not only to their own delinquency but also to the delinquency of young people who are still in school and that we cannot overlook the very close relationship.

Now I would like to add these further points.

Mr. QUIE. Would you yield right there? By "unemployed youth" you mean just the youths out of schools?

Mr. BROWNELL. The out-of-school unemployed.

Mr. QUIE. Or the ones that are in school but unemployed when they are not actually in the classroom?

Mr. BROWNELL. I am commenting particularly on the out-of-school unemployed, but I would say that also, to a certain degree, there is a relationship, but not as serious a one. If we could have more of our youths who are in school able to get part-time jobs out of school, it would likewise provide a considerable preventive to juvenile delinquency, and that is for two reasons. One is, they would be occupied on something worthwhile and in the second place they would secure one of the things that they want, which is money, and recognition of the fact that they amount to something. But year by year the num

ber of young people in Detroit who are able to get work permits decreases, and the getting of a work permit means that they are able to get a job.

So we have plenty of young people who would like to get jobs but cannot because the jobs are not there.

Mr. QUIE. Why is it increasing each year?

Mr. BROWNELL. Well, there are several reasons for that. One is the fact that a great many of the areas that formerly would take these young folks as beginners have found that the pressures, both legal and seniority and social pressures, are such that they have to put an older person in a job and, secondly, that the jobs that were simple jobs which these youngsters could do are the kinds of jobs that are being handled by machines.

We do not have the kinds of services in the grocery store that used to take a lot of them. We now have these supermarkets with the gocarts to serve yourself. We no longer have the elevator jobs for the youngsters. We operate the automatic elevators. We no longer have as many caddies. We have little mechanical carts to carry around the equipment for the golfer and you can just go down the line of this large number of simple jobs that were beginner jobs for the youngsters, or part-time jobs for the youngsters which just are not there anymore. Where there are these simple jobs and you have a large number of older unemployed the attention has been given to the unemployed adults rather than to the unemployed youths in most of our places.

Do not get me started on that one or I will take up a very considerable amount of your time because I think there the question of our relative expenditure of dollars and our humanitarian problems comes in. If we have one person unemployed out of two, which is the more serious financially and to society, the individual who is 60 or the individual who is 18 who should just be entering the labor force? Well, I think the conclusion is clear on that. We should not have any of them unemployed, but I think we must give more attention to this total problem of the unemployed youth, because of its potential for juvenile delinquency and the economic consequences of making an individual unemployable when he could be a tax source during his life instead of a tax receiver during his life because we then make him a delinquent who takes our care as well as our support when he could be self-supporting on his own and not needing the care of the probation officer, the courts, and so on.

Mr. QUIE. You now probably want to continue with your statement. Mr. BROWNELL. Well, the further points I have are these:

(1) No one program can hope to provide jobs for all youth who need to be employed-those in rural and urban areas, the very able to the slow and reluctant learners, boys and girls, the delinquent, the delinquent-prone, and those not likely to become delinquents. That I recognize.

(2) We recognize that this problem is not new, nor is it temporary. It was not a great problem, however, when more labor was needed than there were laborers. You and I are no longer living in that age. We do not see such a shortage of labor as a likely condition in the foreseeable future.

(3) If we can bridge the gap which now exists for many youth between school and work, we can reduce delinquency by preventing it for many youth. Your concern is to find how schools, employers, labor, and government can bridge the existing gap so that all pupils leave school for employment, rather than for unemployment; can be constructive citizens rather than delinquents; can help to build our economy rather than depending on it.

(4) It seems to me the problem is clear. It is in arriving at action solutions that there arise obstacles of money, manpower, and jurisdiction. That is one reason why I was glad to see this bill. It is an attempt to pull together the various jurisdictions in attacking this. I dislike added taxes as much as anyone, but I dislike juvenile delinquency more. I would like to see localities handle the problem entirely, but the evidence is clear they are not and that the local tax barriers are not being modified by the States to enable localities to develop programs as rapidly as juvenile problems and needs are increasing. States are not providing the cities with funds sufficient to enable schools or other agencies to keep pace with or to take the necessary action to prevent juvenile delinquency, nor are they taking the necessary actions or providing the necessary funds to handle the problem themselves.

Federal funds and incentives to make it possible for schools and communities especially cities to reduce youth unemployment and to improve school conditions could do much to prevent and reduce juvenile delinquency. That is the reason that I feel that the proposals before the Congress, not only this juvenile delinquency program but the program for school improvement and for meeting the total youth problem, all tie into a very important approach to a problem that is here, that we cannot dodge, and I do not think that we can forego it for another 7 years.

(5) Action is needed now.

Mr. BRADEMAS. May I interrupt you to be sure I understand what you are saying. Do I take it you have just endorsed the administration's school support bill when you used the phrase "bill for school improvement" as one of the weapons in the arsenal to attack juvenile delinquency?

Mr. BROWNELL. Indeed I have.

Mr. BRADEMAS. I am delighted that a man named Brownell has gone on record in that respect.

Mr. BROWNELL. Well, I would say, Madam Chairman, and Congressmen, that I reluctantly do it. I do it because I think the States and communities ought to handle their problems, but I think that the problems of youth are not going to wait for our changing of the constitutions of our States and for the action that is taking place, or rather the inaction that is taking place otherwise. We are in a situation that is critical, particularly in our large cities, which from my point of view are the frontiers of American education and since we have not stepped up to bat on that I think we are in the same kind of position we are in other phases of national defense.

Mr. BRADEMAS. I think that is an excellent statement and I particularly want to commend Dr. Brownell for his discussion at point 4 on page 4 of his statement, beginning with the words "The problem is clear. ***99

His discussion of the relationship between these various problems of juvenile delinquency, and more schools and teachers and the tax problem that is confronted by the States and the loval governments-I think that that paragraph is one of the best analyses of this entire dilemma that I have seen.

Mr. BROWNELL. Thank you. Now if I may continue?

Mrs. GREEN. Yes.

Mr. BROWNELL. The greatest need is for programs in urban areas. The programs should be such that unemployed youth could get jobs with little delay. Such programs should be developed with these

characteristics:

(a) They should require a minimum of trained personnel for leadership because there are presently shortages of such personnel. There have been a lot of programs that have been proposed that it would be wonderful if we had the money and trained personnel, but we are short of trained personnel for the schools and many of these programs would call for using this pool of people where we are already short, if they were to be successful.

(b) The jobs should be chiefly in urban areas because that is where these youths will be living and need to locate their permanent jobs. We have a surplus of youths in rural communities, just as we have a surplus of farm products. We cannot store our youths in cribs. They migrate to the cities and that is where we have a concentration of unemployed youth. That is where they are going to get their living in the long run and I think that is where our job opportunities have to be provided.

(c) The jobs should be necessary jobs, not "made work."

(d) The jobs should provide learning experience making for greater employability of the youth. In other words, here is our opportunity to carry on the introduction of young people to work and getting them to see through their work experience the opportunities to make more of themselves, which we recognize is one of the best ways for young people to see their opportunities. Very few people, when they start in on their career, see the possibilities of their potential. They have to start in on a beginning job and they move on up, but you have to get them started.

(e) The money earned and conditions of work should be more attractive than welfare and less remunerative than regular jobs. It is in that area of not getting them to see that they feel it is more profitable for them to be on welfare or so profitable to be on this kind of job that they do not move into the regular job opportunities that we have to work. I think.

(f) The jobs should not be ones which replace employed persons. (g) The program should be administered through existing agencies, not through establishing new ones.

(h) Priority in job opportunities for youth should be in reinforcing and strengthening agencies where added services will be most likely to reduce delinquency.

(i) The overall cost per youth should be as low as possible in terms of dollars spent and in trained manpower utilized. Those, I think, are the specifications we ought to work toward in the development of these programs. Attached to this statement is a suggested "Urban Service Corps." It has been developed with the above criteria in