Senator CLARK. We will have your entire statement printed in the record at this point. I see that it is eight pages long and I would ask you if you would be willing to summarize it for us rather than read it in detail.

Mr. TUCKER. I will do that, if that is your wish. (The statement follows:)

STATEMENT OF STERLING TUCKER, NATIONAL URBAN LEAGUE

Mr. Chairman, and members of the committee, my name is Sterling Tucker. I represent the National Urban, League, a national social welfare and educational service agency with affiliate in 65 cities.

The National Urban League appreciates the opportunity of appearing before this committee to present our observations about the problem of juvenile delinquency. You may be aware that the National Urban League came into existence 49 years ago because of the recognition on the part of concerned citizens that migrant families who were moivng from rural to urban surroundings needed assistance. In that transition there often was a breakdown in the family. Families were faced with problems of urban living with which they were ill prepared to come. In many areas, particularly employment, housing, health, use of leisure, etc., leadership and counseling were desperately needed. And many of these families made use of the guidance given them, whereas the absence of such help might have caused them to become problems to the communities of their choice, and a drain on limited resources.

The work of the urban league concerns itself with the various aspects of the whole family and its interrelationships with the community, local and national, in the knowledge that enlightened and advanced citizens contribute materially to the welfare of their communities and of the Nation. We know that juvenile delinquency, like other symptoms of disorganization and maladjustment, is a byproduct of confusion in reaction to the influences of the community and the family; that the direction youth takes is determined by the nature of these reactions and the socioeconomic forces which bring them about. We recognize that the problem of juvenile delinquency is no isolated phenomenon but, rather, is inseparable from the total interaction between the family and the whole community.

Facts and statistics confirm that juvenile delinquency has become a national emergency. The bills which have been introduced demonstrate your recognition of the necessity for research, better methods, institutional development, more adequately trained personnel, and, last but not least, activity in the field of prevention. We concur that the need is great. Certainly we must discover broader approaches and new techniques. And we believe with deep and grave concern that we must be motivated by the very real concept of juvenile delinquency as a preventable phenomenon, with the conviction that those young people who have become already delinquent can be rehabilitated.

It is our firm conviction that the Federal Government can make its greatest contribution in the area of "prevention." For it is in this area there is the most infinitesimal amount of money available for help. Preventive programs are hard to sell to local governments. Private agencies and institutions, handicapped by limited funds and personnel, found themselves sorely handicapped from doing an adequate job. For the most part, these limitations have confined Government and private agencies to working with the problem "after the fact," so that a spiraling and seemingly never-to-end stream of funds is being poured into the work of "cure." We recognize that for a long time to come "cure" will have to be our concern, but unless adequate time, care, and attention are given to "prevention" we cannot see how we can ever begin to diminish the magnitude of the problem we are discussing today.

For example, with proved techniques we can identify the children who most need assistance if their delinquency is to be averted. This means time and attention devoted to the adjustment of the entire family to its surrounding community. It implies knowledge of the adjustment of different types of families, and the needs of those families in terms of their composition, their cultural backgrounds, the breadwinners present, their potentials, the facilities available to them, etc. For example, can we assume that a family of seven children with only a mother as a breadwinner and no father present can be expected to fit . adequately into the community patterns without certain specific services which

take into consideration the need for male guidance and leadership. Does this imply that the mother needs either a supportive relationship from some agency to provide the guidance which a father, if he were present, might give? Or is it necessary that the community provide a substitute who can give to this family the support and understanding they need from a male figure? Certainly, agencies attempt this on a limited basis, but how much do we really know about this type of activity until all such programs are in a position to pool their findings and recommendations, and then establish criteria based upon the results of already sought out and identified specific needs to be met?

Or, again, how much do we know of what can be accomplished on a broad scale in families where fathers are present, where their inadequacies are recog nized and their need for guidance and help established, but where limited funds knowledge, and personnel prevent that kind of help from the appropriate agencies?

Already to a considerable extent, we can delineate the communities and pinpoint the homes where the potential for delinquency is extremely high. We can predict, with sometimes perturbing accuracy, the trouble spots. Our local governments and social work agencies often know what needs to be done, but funds for programs of prevention are not available and we are powerless to head off the trouble. Regrettably, I say again that now our efforts must be centered around "the child in trouble." This is, working with problem "after the fact," and our communities are ever sliding downhill into deeper and deeper trouble.

Over the years the National Urban League has developed and supported programs of community organization and coordination as a means of providing prevention. Our trained social workers have been attempting to "work before the fact," in many areas with projects similar to the following:

In city A, a slum clearance program gaining momentum began relocating families in a new area or subdivision. Available data demonstrated overwhelmingly that the mere relocation of large numbers of families from slums did not mean that there were no longer problems with which they needed help. In fact, it became clear that prospective "trouble spots" might be created unless something were done to assist the families with their "problems of adjustments." The urban league went into the area where it established and staffed a community center; organized teenage clubs and mothers' clubs; interested fathers in home improvements and maintenance; saw to it that counseling and guidance as to proper use of health and welfare resources was provided; and worked for close cooperation between the schools and parents.

This was a program of prevention-a program in which trained personnel emphasized the use of available statistics, surveys, and reports to avoid anticipated results. Great emphasis was placed on establishing "group consciousness." Youth and adults were helped to "identify" with the larger community. In other such programs, we are trying to establish recreation facilities so that natural gangs may develop leadership and become groups geared to constructive exercises of their natural teenage gregariousness, rather than left to their own devices so that each juvenile becomes a crime statistic and the groups become the menacing "street gangs," so great a problem to a large part of the Nation.

The urban league is convinced that emphasis should be on programs and on projects which use the available data at the home and community level. Basic research is, of course, important but there are too many unused statistics lying about. Reports and surveys multiply and deliberations are continuous. We cannot help but feel that the problem of juvenile delinquency is being written and talked to death.

Certainly, too, availability of trained personnel is part of the problem. But many of our trained young people, graduating from schools of social work, are "passing through" the field because social work is monetarily unrewarding. This coupled with the frustrating experience of working in a field without established criteria for "getting at the heart" of the problem has caused us to lose a great potential.

And the number of misguided youth piles up and has become mountainous. Only by giving relief at the source of the problem may we hope to reach a happy solution. Communities have backed away from the problem. They have blamed our schools and our police departments; they have blamed parents and the young people themselves. But they have said too little about making available the money for programs and tools which can aid the difficult job of rebuilding families.

Let me now refer to the legislation under consideration.

(1) We feel that the proposed Advisory Council should represent a cross section of the varied interests which have made contributions through planning and research projects and programs. We would wish for a Council whose membership would include representatives from related private voluntary, as well as public organizations. We recognize the value of participation of professional experts and authorities who have and can define the problem and suggest methods of meeting it. They would be an essential part of the Council. We do feel, however, that the membership of the Advisory Council should be broadly based and representative of the many groups which, in the final analysis, are going to have to do the work on the community level, whether with families or with individuals

(2) Ideally, we would wish for a foundation type of Federal Advisory Council, to whom local and community groups could look for direct assistance. Ideally, we say, a foundation type of Council is desirable, but we recognize that it may be necessary for the States to administer the program, and we support the proposals in the several bills for local councils similar to the Federal Council.

Recognizing that most often delinquency is evident among the groups on the lowest socioeconomic levels in our communities, we would urge the safeguards of criteria designed to guarantee that help given be provided those who most need it. Recognizing that minority groups are most frequently these affected by the conditions which produce the social ills, delinquency among them, we most strongly urge that provision be made to insure that allotment of funds by the several States be made on the merits of the projects proposed and completely wtihout regard to race, creed, or color. We believe that if State machinery would not remove the decision making too far away from the participating personnel, this could be most effectively guaranteed. In addition, we would hope for a great deal of flexibility in State programs, and for imaginative planning and use of funds to achieve broader horizons, and for greatly enhanced programs where such additional services are needed.

We would further urge that close observation be given by the Federal Council to the type of machinery established by the States to avoid cumbersome and involved procedures which might delay the processing of applications for help as well as the approval of such applications and the processing of the resulting grants.

(3) We would hope that the Advisory Council would approach its job in the first year with the question "What is needed?" and then return to Congress with a request for an appropriation which will permit the country to establish and to maintain programs designed to meet realistically the existing needs. Setting up a budget schedule with increased amounts for the first few years seems to us a sound concept which allows for program expansion and growth. At this point, however, we wonder if it is not difficult to determine how much money is needed as is evidenced by the variety of proposals in the several bills. Rather, it might be preferable to first determine the kind of program which will best meet the emergency, and then estimate the cost.

Finally, may I say this. Any amount of Federal moneys-wisely used-is going to help the States and the local communities with the growing problem. Any type of advice and direction, thoughtfully conceived at the Federal level will stimulate the people of our country to invest their local funds and energies to deal with the problems of youth and family. Such moral leadership in itself is meaningful for those who for so long have struggled with this problem. There can be no better investment than in an implemented ideal which wipes out, diminishes, or even deters juvenile delinquency and offers to the youth of our Nation a chance for the fullest exercise of their abilities with which they were endowed.

Mr. TUCKER. I would like to say, Mr. Chairman, that the Urban League is one of the agencies which has been working in this field for now 49 years. It has recognized the importance of the family and the need for strengthening family life.

One of our basic concerns during this period (as a result of a look we took nationally in 1955 at what is going on in American life) is the need for specialized activities to strengthen family ties.

The Urban League has been working with problems of immigration, particularly as relates to minority groups as they went from rural to

urban communities and were faced with special problems; particularly problems of employment, housing, health, and use of leisure time and counseling services.

Senator CLARK. Mr. Tucker, your fine organization, with which I am familiar, deals very largely with the Negro portion of our population, does it not?

Mr. TUCKER. That is true.

However, while we are concerned with this particular area of the problem we think of the problem of race relations as a problem of the whole community, of the whole Nation, which primarily affects the Negro.

We recognize that in dealing with this problem we have to bring together the best available leadership from across the country, repre senting Government and industry and labor and education without regard to race.

I would like to read certain parts of the statement if it is all right. Senator CLARK. Yes.

Mr. TUCKER. Facts and statistics confirm that juvenile delinquency has become a national emergency. The bills which have been introduced demonstrate your recognition of the necessity for research, better methods, institutional development, more adequately trained personnel and, last but not least, activity in the field of prevention. We concur that the need is great. Certainly we must discover broader approaches and new techniques. And we believe with deep and grave concern that we must be motivated by the very real concept of juvenile delinquency as a preventable phenomenon, with the conviction that those young people who have become already delinquent can be rehabilitated.

Senator CLARK. Were you in the room when Mr. Royfe, the preceding witness, testified?

Mr. TUCKER. I was.

Senator CLARK. Do you think his statistical estimate is reasonably accurate, that 20 percent of the boys of America will be delinquent by the time they reach 18?

Mr. TUCKER. Well, it depends upon the definition of delinquents. If we are using a legal definition I probably would question the

statement.

Senator CLARK. Let me read from his statement:

I am certain that you know that approximately 20 percent of the boys in the United States will be legally designated as a delinquent before reaching the age of 18.

Would you agree with that?

Mr. TUCKER. I would say that this would be a debatable point. Senator CLARK. What do you think of his view that there are presently 1 million delinquent youth in the country as of today and that this is the rate which has continued for at least the last few years? Do you think that is high, low, or about right?

Mr. TUCKER. As to the figure, I would not really feel qualified at this moment to make an estimate. I would say, however, that I think the records will show that there is an increase and that in some parts of the communities of the country the increase has been at an alarming rate.

Senator CLARK. Now, you are going on to the part you think the Federal Government should play and you state you think its greatest contribution should be in the area of prevention.

Would you develop that a bit?

Mr. TUCKER. Yes, we believe that its greatest contribution can be in the area of prevention because most of the existing programs are of "cure." We are dealing with the problem after the fact.

Senator CLARK. I think we would all agree with that.

What techniques would you utilize in order to get in the field of prevention?

Mr. TUCKER. I think that juvenile delinquency first of all cannot be treated as an isolated phenomenon. The behavior of anyone is determined by environmental circumstances; determined by associations and other related factors. Since, we know that environment is an important factor influencing behavior, it seems to me we have to treat those environmental factors which produce antisocial behavior. We know that slums and lack of employment and broken homes all contribute to social disorganization. This being true, if we are to deal with the problem of juvenile delinquency effectively, we must also seek to correct these broader environmental influences.

Our testimony indicates that we can predict almost in certain families that there will be delinquency. In certain neighborhoods we can predict where delinquency rates will be higher because of certain basic environmental circumstances and family conditions which are known to contribute to undesirable behavior. And so we believe that programs of cure have received the greatest attention simply because such activity is more dramatic. There is a natural tendency to focus attention on programs of cure because the problem is with us and we see it and we want to correct what we see. Often, however, what we see is merely the manifestation of something deeper and considerably more basic. We are preoccupied with treating symptoms. The Urban League believes however that, in order to get at the core of the problem of juvenile delinquency, the spotlight of interest and planning must also be focused on "cause"; focused in the direction of economic and environmental deprivation.

Senator CLARK. Have you given any thought as to whether the establishment of Youth Conservation Corps camps would be helpful in dealing with this problem?

Mr. TUCKER. This is a subject which has been under unofficial discussion. There is a role, a limited kind of a role which such activity could play.

This, of course, would not get at the bases of the problem, if the youngsters after coming out of this program go back into the same homes; the same kinds of nonwholesome environment from which they came.

I worked for a period in group work and recreation and we served youngsters in slum neighborhoods. Some of them came from homes where there were no bathing facilities. In our program, before a child could take a swim he had to take a shower; and also, shower after the swim. While, such regulations, undoubtedly contributed to the cleanliness of the children; the basic facts of the problem remained unaltered since it was physically impossible for there to be adequate followthrough at home.

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