tion of the needs of older persons as whole people. The problems of the Nation's senior citizens are emerging problems now reaching the scope where national attention and therefore a national agency is required. SOME PROS AND CONS The proposal to establish a U.S. Office of Aging has raised a number of questions with respect to its immediate and longrun value. The questions may be listed as follows: 1. If an Office of Aging is established, will it not tend to take over the functions in the area of aging now being carried out by other departments and agencies? 2. Won't an Office of Aging, located in the Department of Health, Education, and Welfare, be limited in its outlook to the interests of the department? 3. If there is to be an agency dealing with problems of aging on an overall basis, should it not be outside of any operating agency? Don't we need an independent commission instead? 4. Isn't it possible that a Federal agency active in this field will reduce the effectiveness and support of voluntary agencies with interests in this area? These are the major questions which have been raised at various conferences and discussions of the proper Federal organization to meet the problems of an aging population. These questions raise proper concerns, but do not constitute serious objections to the creation of the proposed Office of Aging. The reasons include the following: 1. The Office of Aging will not have service functions of its own, but will be consultative, reflective, stimulative, and financially supportive for programs for senior citizens. It thus will not in any way assume the responsibilities filled by other departments and agencies, but rather will be helpful in strengthening them in the execution of their present responsibilities and the assumption by them of necessary new duties. 2. The history of State and Federal organization provides ample evidence that the effectiveness of an agency in the determination of public policy is directly related to its place in the established departmental structure of government. The use of independent commissions--outside of a regular department-is helpful for making studies and recommendations on a temporary basis. They are not, however, ordinarily employed for sustained contributions once the period of extensive study and reporting has taken place. The past decade can be characterized largely as one of study, reports, discussion, and preparation, rather than concrete action. For the past 2 years the White House Conference on Aging and the hearings of this subcommittee have sparked local, State, and regional conferences; has produced numerous surveys, studies, reports, and recommendations; and was climaxed with a national conference of almost 3,000 delegates in Washington. It is the belief of the subcommittee that the Nation is now ready for action and that further committees and further study will only induce disillusion, frustration, and cynicism among our aged citizens. Former Secretary of Health, Education, and Welfare, Marion Folsom, in discussing Federal organization at the White House Confer ence on Aging, did not endorse the Office of Aging bill. But with respect to independent agencies, he said: I do not believe that an independent agency would be feasible. We already have too many independent agencies in the Federal Government; recent studies to improve the efficiency of government have pointed out the desirability of moving in the opposite direction-concentrating functions and eliminating duplication and complication with the several departments now functioning in this field. 3. Assuming that an Office of Aging thus should be located in an established agency, the logical assignment is the Department of Health, Education, and Welfare. Its responsibilities in aging include income maintenance, health, financing medical care, rehabilitation, education, research, and social services. Its role far exceeds that of any other governmental agency and lays a natural basis for integrative thinking in this field. 4. In order to relate closely to the formation of policies in behalf of older persons, the Office should be at the level of an Assistant Secretary of HEW, who would be the immediate assistant to the Secretary in his role as chief adviser to the President on problems of aging. Further coordination could be achieved through an interdepartmental committee, chaired permanently by the Secretary of HEW and staffed by the Assistant Secretary for Aging and his Office. In addition, there would be a combined citizens and public advisory committee which could include Members of the Congress-to broaden and freshen the approach to programs and policies for improving the conditions of senior citizens. 5. The field of aging and its problems are so numerous and manysided that no group-voluntary or public-will in any way be diminished by the creation of such an office. Experience in the field of education, mental health, welfare and health generally evidences that a public response to a felt need gives new impetus and support to voluntary organizations. The Office of Aging could in no way supplant voluntary activity but rather would be available for consultation, assistance, and stimulation. 6. The White House Conference on Aging did not approve any specific form of organization but did set forth the following elements: (a) A statutory basis and more independent leadership; (b) Adequate funds for coordination and other assigned functions through a "line item" appropriation; (c) Responsibility for formulation of legislative proposals for submittal to Congress; and (d) Responsibility for periodic reviews of and reports on the various programs, departments, and agencies working in behalf of older people to achieve their effective coordination and oper ation. A DECADE OF CONGRESSIONAL CONSIDERATION Since 1950, there have been at least 53 bills introduced in the Congress either to establish an agency on aging within the Department of Health, Education, and Welfare, or to create a U.S. Ĉommission on Aging. Interest in these proposals has mounted in the last several years and action on the matter may be on the immediate horizon. (A list of such bills prepared by the Legislative Reference Service of the Library of Congress is presented at the end of this chapter.) Hearings were held on a "Bureau of Older Persons" in the spring of 1958 by a subcommittee of the House Education and Labor Committee. A number of House Members have actively promoted such a proposal since that time. In the past 2 years hearings by this subcommittee dealing with problems of the aged and aging resulted in testimony from a number of witnesses recommending an office of aging. The data collected by the subcommittee, its special studies, the testimony of hundreds of older citizens, as well as that of national experts and local administrators, and the personal visits of the members of the subcommittee to the homes of older persons pointed to the need for a systematic national attack on the problems of the elderly. Introducing a bill to provide for an Office of Aging, Congressman Thomas J. Lane, Democrat, of Massachusetts, stated that a "step-bystep improvisation" approach to the problems of the aged and aging— *** has resulted in too much overlapping and duplication that has obscured other problem areas where the aging need our advice and help. A single office to serve as a clearinghouse for information, for research and training programs, and to provide clear leadership and direction, will coordinate Federal, State, and community action in behalf of a comprehensive yet unified approach to the whole problem (Congressional Record, Aug. 24, 1960, p. 16287). In a recent communication with the subcommittee, Dr. Margaret S. Gordon, associate director, Institute of Industrial Relations, of the University of California (Berkeley) wrote: I should like to see a special Office on Aging established within the U.S. Department of Health, Education, and Welfare which would have as one of its functions the stimulation of research on all aspects of aging. Such an office could work with the various Government agencies that have concern with the aging problem to stimulate research in areas that are currently being neglected or that need greater emphasis. The actual research grants might be awarded in some cases through the National Institutes of Health and in other cases through Social Security Administration, the Bureau of Employment Security, or other appropriate agencies (letter, Aug. 12, 1960). The White House Conference on Aging climaxed 2 years of intensive participation at 77 statewide meetings by more than 30,000 people. Recommendations were suggested by hundreds of local conferences, by Governors' Conferences in each State, by State commissions and finally by the delegates to the White House Conference itself. There is a vast legacy of thought and recommendations which need to be systematized, assigned priorities, and selections made for executive and legislative action at the local, State, and Federal levels. The subcommittee feels that this dramatic effort will be wasted if it does not culminate in establishing a U.S. Office of Aging to follow up these studies and recommendations. The achievements to date should not be relegated to the category of having been just "one more conference." RECOMMENDATIONS The subcommittee recommends that the Congress enact in 1961 authority to establish a U.S. Office of Aging within the Department of Health, Education, and Welfare. At the same time the top-level post of Assistant Secretary for Aging should be created to make clear the importance and magnitude of the work to be done. The duties of the Office should include: (a) A clearinghouse of information related to problems of the aged and aging; (b) assist the Secretary in all matters pertaining to the aging; (c) administer grants provided by the act; (d) conduct research and demonstration programs in the field of aging; (e) provide technical assistance and consultation to States and localities; (f) prepare and publish educational materials dealing with welfare of older persons; (g) gather statistics in the field of aging. The Office of Aging should administer a program of grants for: (a) Planning assistance to each State to conduct studies, develop plans for new programs, and improve and coordinate existing programs; (b) project grants to the States to initiate and operate demonstration programs to further the implementing of the declaration of objectives for senior Americans; (c) assistance to nonprofit institutions and organizations to conduct research and training programs in the field. Planning and project grants, as demonstrated by the Hill-Burton Act and other such grant programs, have proved most effective in achieving efficient, cooperative relationships for joint Federal-State programs in many important areas. SUMMARY The Federal Government is in need of a central agency which can act as a spokesman for the aged, which can give focus and full-time attention to the problems of the aged and aging. It can bring technical and financial resources to bear on this problem so that the Federal Government will be equipped to meet today's problems today. The experience in the States supports the idea that unless there is an agency legislatively authorized and which is built into the structure and fabric of the Government, then relatively little is accomplished. The Congress has considered this matter for more than 10 years and has had over 50 bills presented on this subject alone. Hearings have been held and it has been discussed by citizen groups throughout the country, in State conferences on aging and at the White House Conference on Aging. The Federal Government is ready for and requires a high-level agency created and backed by Congress to serve as an eloquent spokesman for senior citizens everywhere. After years of conferences, reports, bills, and studies, it is now certain that unless a specific agency is created with power and responsibility to seek action, very little will be done. These problems, which have been buffeted about from agency to agency in a fragmented fashion for the past decade, are not 67714-61-9 going to diminish or oblige those who would rather talk than act. They are with us now and will be on an ever-increasing basis. The purpose of this proposal to establish an Office of Aging was expressed by Senator McNamara on the floor of the Senate as follows: The golden age ought to be the opportunity to reach one's outer limits. The latter half of life ought to be a time when we are freed of fetters and have the chance to soar to whatever heights we are capable of reaching. What I propose today is a means to help all of us grasp that chance when it comes. REFERENCES TO BILL AND PUBLISHED COMMITTEE HEARINGS RELATIVE TO ESTABLISHING A BUREAU OF OLDER PERSONS AND A COMMISSION ON THE AGING AND AGED, 1950-60 81ST CONGRESS, 2D SESSION, 1950 House Resolution 473: Creating a select committee to conduct an investigation and study of the problems of the aging. Mrs. Douglas. 82D CONGRESS, 1951-52 No bills were introduced. 83D CONGRESS Bills introduced in the House of Representatives: H.R. 9861: To establish a Commission on Programs for the Aging. Mr. Coudert. No printed hearings. S. 3731 To establish a Commission on Programs for the Aging. Mr. Ives. No printed hearings. 84TH CONGRESS Bills introduced in the House of Representatives: H.R. 3254: For the establishment of the U.S. Commission on the Aging and Aged. Mr. Laird. H.R. 3307: For the establishment of the U.S. Commission on the establishment of the U.S. Commission on the establishment of the U.S. Commission on the Mr. Sikes. establishment of the U.S. Commission on the Mr. Hosmer. H.R. 6044: For the establishment of the U.S. Commission on the Aging and Aged. Mr. Corbett. H.R. 7499: For the establishment of a Commission on the Aging. Mr. Ostertag. H.R. 8941: To provide for the establishment of the Bureau of Older Persons within the Department of Health, Education, and Welfare; to authorize Federal grants to assist in the development and operation of studies and projects to help older persons. Mrs. Green of Oregon. |