areas should we concentrate on, assuming that this committee may narrow the scope of the bill?

Miss HEIGHT. Mr. Hathaway, instead of just saying target area, I would say that I would hope also that the bill might include training. I say that because training is one way in which we are able to multiply results because we are able to prepare people who then can reach other people and help us get a job done.

Maybe what we need to say is that the provision of training is an important way of doing this.

Mr. HATHAWAY. Do you mean training of counselors, of delinquents, or of both?

Miss HEIGHT. It seems to me it should be at the level of the adult leadership, but it also needs to be at the point of youth development. I think this has been one of the new dimensions that these programs have aimed at. The influence in the age group we are talking about is so important.

Mr. HATHAWAY. Isn't this being done in the Job Corps?

Miss HEIGHTS. Yes; but that is away from the home base. I think what strengthens this program is that it gives us a way of doing something in the localities.

Mr. HATHAWAY. Do you have any other suggestions on where we might concentrate our moneys?

Miss HEIGHT. I have the feeling that the kinds of programs that help us to multiply the use of resources in a community has one of the problems that we are faced with that in the deprived areas people hear slogans like "Plans for progress" or "Things are changing," but they do not see the whole services that come to them.

It seems to me that focusing on multiple service is very important in this kind of program because it means that we are helping relate people to a wide range of resources and that hopefully they, themselves, are then better citizens and able to use.

Mr. HATHAWAY. Have you any others?

Miss HEIGHT. I have already spoken to the issue of planning, because I think this is a way of making more creative use of existing sources as well as utilizing new channels.

Mr. HATHAWAY. Thank you very much.

Mr. PUCINSKI. Thank you very much, Miss Height. I know you are anxious to get to your other committee meeting. We are grateful to you for having spent so much time with us.

Miss HEIGHT. Thank you.

Mr. PUCINSKI. The other witnesses, I am sure, have been able to recognize the fact that the members of the committee have a lot of questions that we would like to ask. I am sure you will have no objection if we put your statements in the record in their entirety.

We would then perhaps like to go immediately into some rather good discussions on how we can strengthen the bill on the basis of your own personal experience.

STATEMENTS OF NED GOLDBERG, FIELD CONSULTANT, NATIONAL FEDERATION OF SETTLEMENTS AND NEIGHBORHOODS CENTERS, NEW YORK, N.Y.; BRUCE COLE, DIRECTOR, DIVISION FOR PROGRAMS, YMCA, METRO CHICAGO; MISS FLORENCE JONES, DIRECTOR, PROJECT MIAMI, MIAMI, FLA., AND MISS NARCIA ALLEN, FIELD SUPERVISOR, ROVING LEADER PROGRAM, RECREATION DEPARTMENT, WASHINGTON, D.C.

SUMMARY OF TESTIMONY OF NED GOLDBERG, FIELD CONSULTANT, NATIONAL FEDERATION OF SETTLEMENTS

We wish to thank you for inviting us to present our views on the Juvenile Delinquency Prevention Act of 1967. We appear in favor of this legislation.

The testimony I am about to present is based on the decades of experience of our Member Houses operating 399 centers, in 94 cities, 30 states, and the District of Columbia, and our 22 affiliated metropolitan and regional federations of neighborhood centers. It is based, too, on the experience of our National Training Center in Chicago, which has trained personnel for work with juvenile delinquents and in delinquency prevention under three grants from the President's Committee on Juvenile Delinquency and Youth Developemnt.

Passage of the Juvenile Delinquency Prevention Act of 1967 and of the Safe Streets and Crime control Act of 1967 is critical because legislative authority for existing federal programs in the juvenile delinquency field will lapse on June 30. Further, there is need for expanded and enriched programs of juvenile delinquency prevention, corrections, and rehabilitation as has been amply demonstrated in the report by the President's Commission on Law Enforcement and Administration of Justice, and the book, "Juvenile Delinquency-Its Prevention and Control" by Wheeler and Cottrell, written at the request of the Honorable John W. Gardner, Secretary, United States Department of Health, Education, and Welfare.

The Juvenile Delinquency Prevention Act of 1967 makes possible a total and frontal attack on the problem, involving not only law enforcemet agencies, courts and other correctional institutions but also the community, its agencies and the youth themselves.

We are in favor of this bill because it authorizes, encourages and will help to fund comprehensive state-wide and community-wide planning; technical assistance by states and the federal government; experimentation in new approaches to rehabilitation and prevention in the communities in which delinquency occurs; will reduce the labeling of youth as delinquents thereby changing their image of themselves and the image of them held in the community; will provide seed money for the project and program planning, thus encouraging and enabling the development of more effective plans, and will provide funds essential for research.

We are distressed by the omission from the bill of a title or section on training. The shortage of adequately equipped personnel in this field is notorious and, more than any other factor, prevents the achievement of the bill's purposes.

The validity of training has long since been demonstarted by our own Training Center, among other institutions so engaged. Under three training grants, we were able to provide 2.267 days of intensive training for 309 workers from a variety of voluntary and tax-supported institutions engaged in juvenile delinquency prerention. Further, out of the course content of these training programs have come six major publications, widely disseminated, which make a major contribution to the understanding of the problems of the delinquent in his community and of methods of work on the behalf of rehabilitation and prevention.

We urge the amendment of the Act to include adequate provision for training of personnel.

We strongly urge your Subcommittee to provide leadership in the full Committee and in the Congress to expedite passage of this vital legislation and to provide the opportunity to move ahead in this vital area by forging effective links between and among federal, state and local public and voluntary resources.

Mr. PUCINSKI. Mr. Goldberg, from your statement I gather that your greatest concern is the shortcoming of the bill, the fact that we do not provide adequate facilities for training personnel. We will get to that in a minute.

Mr. Cole, I am extremely anxious to hear from you because you have had excellent experience in working with juvenile gangs.

It seems that the whole Nation is now holding its breath in anticipation of this summer. It seems to me that in the last 4 or 5 years we have had a tendency to somehow lose what used to be the most wonderful part of the year-the summer months-when people went out on vacations and families got together, with people generally enjoying themselves. Now it seems that the most precarious part of the year in this country is the summer months when riots, teen gangs and whatnot seem to be the order of the day.

Mr. Cole, you have had some very successful programs and I am anxious to get to you to also find out about the failures. You have talked about your wonderful "Jobs Now" program, and have told about the 3,000 young people you have put into gainful employment, but you hopefully will also discuss the 1,000 that you did not.

We are going to be interested in hearing from you as to why you think these 1,000 did not fit in and how this legislation can help not only the 3,000 but the 1,000 you missed.

TESTIMONY OF BRUCE M. COLE, DIVISIONAL DIRECTOR OF PROGRAM AND STAFF DEVELOPMENT FOR THE YMCA OF METROPOLITAN CHICAGO

My name is Bruce M. Cole, Divisional Director of Program and Staff Development for the YMCA of Metropolitan Chicago. I speak for an interagency group of private associations which formally includes The Chicago Boys Clubs, The Chicago Youth Centers, Hull House, the Young Women's Christian Association and the YMCA. We have informal but closely cooperative relations with the Chicago Commons Association of Settlements and the Welfare Council of Metropolitan Chicago. We strongly support the proposed Juvenile Delinquency Act in general and, specificially endorse from our experience the rehabilitative approach to solving the problems of juvenile delinquency, the training of both professional and indigenous workers in this field, the cooperative involvement of public and private agencies and the experimental stance expressed in the bill.

For the past eleven years we have been increasingly involved in establishing rapport with the street gangs of Chicago and in providing entry into the legitimate opportunity structure for their members.

REHABILITATION

Currently these agencies are spending well over one million private dollars and administering several million dollars more in federal funds in a variety of rehabilitative programs. These include: Youth Action: The Boys Clubs, Youth Centers, Hull House and the YMCA have merged their street work programs into a single Youth Action program, involving sixty-two professional street workers and some two hundred indigenous aides in relationships with more than one hundred gangs. Under a special grant from the Community Fund Youth Action has recently developed a shared approach of professional and indigenous staff with the Chicago Commission on Youth Welfare and the Chicago Committee on Urban Opportunity to the Ranger and Disciple groups in Woodlawn.

Our experience demonstrates that it is possible to reach street groups and to redirect them into positive channels. They do relate to the street worker as an adult model. With the rest of society they do value middle-class goals above street-oriented goals. The problem is to cut through the scar-tissue of repeated failure that their experience with organized society has created, to provide edu

cational experiences in a setting distinct from the traditional school atmosphere which they have learned to dislike and to orient them to what is for them the bizarre and frightening world of work. To this problem we have addressed our efforts.

JOBS.-Now in its fourth year, the Job Opportunities thru Better Skills (JOBS) Project has enrolled, in its first three years, 5,200 youth who averaged 19 years of age, 10 years of education, a normal range of intelligence but who read and figured below the sixth grade level. After basic education and vocational or on-the-job training, the enrollee are moved into employment. With about 1,000 of these youth we failed; another 1,000 were unavailable to the job market due to illness, pregnancy, death, jail or other reasons; 3,000 went into employment and 200 either returned to school full-time or entered military service.

JOBS NOW. After last summer's riots we developed another approach, aimed at status gang members who had too good a street "hustle" going to be interested in standard youth training programs. Sponsored by thirty-nine agencies, including our private agency group, public agencies like the community action agency, the police department and the employment service, religious groups, community organizations, industry, labor and civil rights groups, and directed by the YMCA Advisory Board, fifty industrial leaders who are a cross-section of the economic "muscle" of the city, JOBS NOW proposed to recruit gang members, give them a two week orientation to work and then move them into good starting jobs with a future. The employers and the JOBS NOW staff would cooperate in providing high support to the youth until he had successfully adapted to his job. Since mid-October we have enrolled about 1,200 youth. With 25% we have failed; another 10% were ineligible for employment (too young, pregnant, jail, etc); another 10% went back to school, into other training programs or military service; the remaining 55% entered employment; of these 72% (about 40% of the total enrollees) have retained their jobs. A study of 200 who have held jobs and 80 who lost them shows no difference between the two groups. The difference turns out to be in the companies, in their willingness to give the extra support that makes the youth feel like a wanted and needed employee.

For the last three months I have been loaned to the Department of Labor for about ninety per-cent of my time to help 19 other cities develop a JOBS NOW approach to employment as part of the Concentrated Employment Program.

SUMMER PROGRAMS

It is crucial to provide additional legitimate opportunities in the hot summer months when youth are most delinquency prone. This year, in addition to our on-going programs, we will have two special efforts. We are developing a number of combination coffee-houses and employment centers for teens with youth carrying the primary responsibility both for operating the coffee-houses and developing jobs in the neighborhood for other teens. We will also sponsor a ten-week Vista Associates project, recruiting 100 Chicago college-age volunteers who will work with community organizations and with the teen employment centers and 100 high school age volunteers, drawn primarily from the gangs who will work with the summer recreation program for street groups. Education-While employment is the greatest need for street youth, persuading them to renew their schooling ranks a close second. Twenty years ago a youth who dropped out of school had two possible routes to a career. He could either take a laborer's job or pursue petty crime, "graduate" from reform school and find lucrative employment in organized crime. Both these routes are closed to the Negro gang youth. Without training, legitimate employment is unlikely. And lucrative crime today is syndicated, white, semi-respectable and suburban. Without education Negro youth is completely blocked.

Each year more than 100 gang youth enroll in Central YMCA high school to renew their education. We have also developed a very promising experiment with College Work Study in the Central YMCA Community College. We are permitted to enroll any one who has the potential to finish college, regardless of the current state of his academic preparation, give him up to two years of "prep" school and then expose him to college classes. Of our 235 College Work Study students about half come from the gangs; the balance are primarily neighborhood workers in anti-poverty programs or are drawn from the rural South.

TRAINING

We are strongly supportive of the portions of the proposed legislation which provide for training both professional and indigenous staff. Over the years we have developed an in-service training program that has been productive. We have learned that, through a mix of accredited and on-the-job training, it is possible to move gang members from program volunteers to part-time employees, to full-time employees and, eventually, to professional status. A substantial number of our present street work staff were originally gang members.

COOPERATION

We also strongly endorse the requirement for cooperative efforts between agencies, public and private. One of the most exciting developments in Chicago in recent years has been the increasing willingness of agencies, not just to meet and "knife and fork" about community problems but to share staff, resources and "know-how" in tackling the manifold problems that beset a metropolis. This is a continuing process which will be further strengthened by legislative direction such as is proposed in this bill.

EXPERIMENTATION AND DEMONSTRATION

While considerable knowledge has already been gained through a variety of earlier projects, we are more at the stage of learning to ask the right questions, rather than provide the right answers. (For research on our agency projects see monographs by Hans Mattick of the University of Chicago and Nathan Kaplan of the University of Michigan on the Chicago Boys Club street work and JOBS; for the YMCA street work program see Group Process and Gang Delinquency, Short and Strodbeck, University of Chicago Press, 1963 and an article summarizing their findings, "Gangs and Universities", James Short, Washington State Review, Spring, 1967.)

Let me particularly commend the inclusion of non-profit private agencies in this legislation. The peculiar advantage which private agencies have in experimentation is too little recognized. When one says experimentation, one also says failure; otherwise it isn't experimentation, it's only public relations. For a public agency to admit failure, to assess mistakes and learn from them, is extremely difficult since they are subject to such instant second-guessing by the press and politicians. From this pressure a private agency is relatively free, since no one is running to be president of a Y or settlement house.

There are a host of exciting demonstrations which will be made possible by this act. One example could be illustrated from Chicago: Each year 2,000 youth (400 girls under 18 and 1,600 boys under 17) are returned to Chicago from the state training schools. Under the necessarily sporadic supervision of over-loaded probation officers they face the same environment where they went "wrong" with the added burdens of a record and the elaborate rules of parole. For example, they are forbidden to associate with known gang-members, although membership in a gang may be almost literally a requirement for survival in their neighborhood. They are also, in an auto-worshipping society, forbidden to ride in any car not driven by a relative. While these rules are seldom enforced, an unenforced or unenforceable law, as jay-walkers and late-hour drinkers know, does not contribute to respect for law and order. A consequence of the present probation and parole system is an appaling rate of recidivism.

The Illinois Youth Commission, the Chicago Commission on Youth Welfare and our group of private agencies could receive these 2,000 youth (and, perhaps, another 1,000 court referrals) and provide them with a supervised work-training experience. The work could be in a variety of community services. For those who needed special attention work camps are a proven aid. For those whose home environment was intolerable, halfway houses could be provided. Education could be tailored to need, ranging from basic literacy to college. After a period the youth could be moved through the JOBS NOW apparatus into employment. The total program should prove less costly than a "repeat" at the State Training School.

Let me again express the strong endorsement by these agencies of the proposed legislation and our gratitude that the Congress is addressing itself to providing the resources needed to deal with perhaps the most serious of our domestic problems.