learning (situated in any State), for special projects of regional or national significance which may contribute specifically to the advancement of services for crippled children living in such cities." Subsection (c) to become subsection (e). "APPROVAL OF STATE PLANS "SEC. 513. (a) A State plan for services for crippled children, including special plans for such services in large cities, must (1) provide for financial participation by the State in respect to the purposes of section 511(a) and for participation by the large cities in respect of the purposes of section 511(b): (the remainder as at present). "PAYMENT TO STATES "SEC. 514. (a) From the sums appropriated therefor and the allotments available under subsection 512(a) and 512(c), the Secretary of the Treasury shall pay to each State which has an approved plan for services for crippled children, for each quarter, beginning with the quater commencing July 1, 1962, amounts which shall be used exclusively for carrying out the State plan, including plans for large cities, equal to one-half of the total sum expended during such quarter for carrying out such plan (continue as at present in 514(b) (1), (2), and (3), and in 514 (c) except to add in lines 3 and 9 of 514(c) “and 512(d)" after "512(b)" in each line.)" (Unchanged.) "OPERATIONS OF STATE PLANS The CHAIRMAN. We thank you, Mr. Hecht, for these helpful suggestions. Are there any questions? The CHAIRMAN. Mr. Sachs? Mr. Sachs, will you please identify yourself for our record. STATEMENT OF HENRY N. SACHS, CHAIRMAN, NATIONAL CITIZENS COMMITTEE ON CAREERS IN SOCIAL WORK OF THE COUNCIL ON SOCIAL WORK EDUCATION Mr. SACHS. My name is Henry N. Sachs of 875 Park Avenue, New York City. I am an insurance broker by profession and for my pleasure I indulge in philanthropy and I am on the boards of several philanthropic organizations. I am here as chairman of the National Citizens Committee on Careers in Social Work of the Council on Social Work Education. The CHAIRMAN. Mr. Sachs, do you have copies of your statement? Mr. SACHS. Yes, I have a copy of my statement. I have given it to the clerk, and I would thank the chairman to put it in the record. The CHAIRMAN. All right. You are recognized, sir. Mr. SACHS. Thank you, sir. The Council on Social Work Education itself is a body similar to the National Social Welfare Assembly, but is interested primarily in the training and recruiting of social workers. It has as its members 56 graduate schools of social work in the United States, and 42 national agencies, all of those mentioned by Mr. Bondy, who are also members of our organization, that is, all those organizations who have an abiding interest in professional social work. I would like to say as a private citizen that on top of all the humanitarian motives which we all subscribe to, I personally have additional motives in endorsing this type of legislation and in particular this bill. I am a very patriotic citizen, and I am very proud of the United States. Having attended many meetings of the National Strategy Seminar I have learned, and from other sources, that this Nation is threatened by Communist aggression all over the world, that this is a multidimensional warfare, and that we must meet this warfare on a multidimensional basis. I consider not only the military, but I think we must have economic strength, and we must have a climate that will be least fertile for subversion, and I think that in the law two areas the public welfare bill, H.R. 10032, takes an important step which has long been due. However, as to the bill itself, my competency is limited to discussing the section regarding the training. None of the provisions of the bill can be carried out effectively or economically unless we have the proper personnel trained and properly equipped to carry out these provisions. Unless we have that we have the abuses and we have the waste that we heard about, and there is a tremendous shortage of professionally trained social workers in the entire United States. Currently, among the 35,000 State and public assistance employees throughout the county, only 412 percent, according to the Bureau of Labor Statistics, have full professional training, that is, a master's degree in social work, which requires 2 years of postgraduate study in one of the accredited schools of social work. The Department of Health, Education, and Welfare has set a modest 10-year goal of 333 percent of their workers, so that there remains a tremendous gap that needs to be filled, and I want to particularly emphasize the importance of the various provisions in the bill that will provide grants in title I, part A, on a 75-25 basis and in title B. Complete grants, both of which are definitely necessary. It has been a failure of past legislation, and I refer particularly to the bill last year on juvenile delinquency, which provided only shortterm training. Valuable as such training is, it cannot by itself meet the needs for the supervision which is very important for the planning and per se for the very training of these short-term trainees. The tuition fees that the various schools of social work receive in no way pay for the cost. The cost of social work education is one of the highest. Because of the 2 years only one-third is spent in the classroom, and the other two-thirds are spent at various social agencies, public or private, where the student is more or less like an intern in a medical school and requires individual supervision. It is therefore most important, and I wish to stress this to your committee, that ample provisions be made to permit grants to the schools so that they can train as many students as possible and help fill the big gap that exists today in the government and elsewhere, and when I say government, this is mostly State and local government, in qualified personnel to administer not only effectively, but economically, the very provisions which our country needs for survival. (The statement referred to follows:) TESTIMONY IN SUPPORT OF PROVISIONS OF PUBLIC WELFARE BILL (H.R. 10032) FOR GRANTS FOR TRAINING PUBLIC WELFARE PERSONNEL (By Henry N. Sachs, chairman, national citizens committee on careers in social work of the Council on Social Work Education, New York, N.Y.) There are currently more than 35,000 State and local public assistance employees throughout the country, only 4.5 percent of whom have had the basic social work training recommended for practice in this field, and yet they are expected to deal with some of the most complicated personal and family social problems coming to any social agency, such as unmarried parenthood, dependent children, family breakdown, desertion, delinquency, and chronic dependency.1 The acute shortage of personnel qualified by education to staff State and local public assistance programs is, of course, directly worsened by the critical shortage of social workers throughout the whole field. This is a point I would like to emphasize to this committee, for although we are urging you to provide funds for training family and child welfare workers because this is the most neglected area of training in the field, there is a great and growing need in other areas such as juvenile delinquency, corrections, and the aged. Since Congress has before it requests for funds for training doctors, nurses, dentists, and other categories of professional personnel which are in short supply, we need to bring to your attention the critical need for funds to help train public welfare staffs who deal with the largest number of cases requiring public care. The reason why this lack of training of public welfare personnel is viewed so seriously is that we now have enough evidence to show that properly trained social work personnel working intensively with ADC families is the only way in which we can hope to restore them to greater self-reliance, give the children of these families and honest chance to become self-reliant citizens, to conserve human and economic values and resources as well as to save public funds.* The request that you provide training funds for public welfare staff is in no sense new to the Federal Government, for Federal funds have been and are being made available for the training of social workers in psychiatric, medical, vocational rehabilitation, and military programs. Although the need for trained public welfare workers is acute, schools of social work currently have unused capacity, and there are large numbers of public welfare employees and college students who are eager to study social work if they can get some help in meeting the costs. Staff training programs now being carried out by some States would be greatly aided and increased by the provisions of the proposed bill under title I, part A for Federal contributions of 75 percent to States toward the cost of training personnel employed or preparing for employment in the State agencies or their subdivisions. Direct Federal help to students and to schools of social work in the institutions of higher learning is also needed in order to achieve the goal of more effective public welfare programs. As is the case in medical education, the cost of education is greater than tuition income, and schools need direct aid in addition to scholarships provided to students. This would be given under part B of the proposed bill by providing for Federal grants to institutions of higher learning and for fellowships and traineeships. It is understood that some of the funds expended under the various provisions of this bill could be used for inservice training and some for professional education. There is great need for both types of training. More personnel with full professional training is needed for giving service to complicated cases and for supervisory, planning, and training positions. The large numbers of staff for whom professional education would not be feasible at the present time would nevertheless be able to perform more economically and effectively as a result "Salaries and Working Conditions of Social Welfare Manpower," 1960, U.S. Bureau of Labor Statistics. See "The Practical Value of Social Work Service: Preliminary Report on 10 Demonstration Projects in Public Assistance" (app. II). of good inservice training measures. We respectfully urge your committee to approve all provisions of this bill for personnel training, and to emphasize those for full-time training. We have attached to this statement appendixes which provide certain factual information about the supply and demand of social workers and comments by knowledgeable people thereon. They also include a report of 10 demonstration projects in public welfare which show how intensive social services by trained personnel can rehabilitate dependent families, resulting in more productive and useful lives for the individuals and ultimately in savings to the taxpayers. In conclusion, let me state that only if funds are provided to help universities provide a larger number of well-qualified social workers can the basic objectives of this bill be carried out in an economical and effective manner. APPENDIX I SOCIAL WORK MANPOWER AND SOCIAL WORK EDUCATION IN THE UNITED STATES EXISTING PERSONNEL In 1960 there were 105,351 social work positions in the United States. Only 22,124, or 21 percent, of the staff filling these positions had professional preparation for this work. These social work positions are divided among three types of major employing agencies: Federal Government, 2,784; State and local governments, 64,022; voluntary agencies, 38,545. The estimated vacancies in 1952 totaled approximately 10,000, including 3,000 in public assistance and child welfare; 4,000 in settlements, community centers, etc.; 2,500 in medical and psychiatric social work positions. The situation in respect to the balance between supply and demand for staff has not improved since then despite the increase in enrollment in schools of social work because demand has risen faster than supply. Authorities in several fields have testified recently to the critical need for more trained social workers, and there is unanimity of opinion among them on this point. For instance: Mental health. The American Psychiatric Association reported in 1960 that mental hospitals need 2,366 psychiatric social workers and are staffed at only 40.3 percent of adequacy in this classification. The Joint Commission on Mental Illness and Health reported in 1959 that "the field of mental health faces a real manpower crisis." It noted the severe shortage of all mental health personnel, including social workers. Juvenile delinquency control.-The late Senator Thomas C. Hennings, chairman of a U.S. Senate Judiciary subcommittee studying juvenile delinquency, emphasized in his report in July 1960 "*** a crucial need for more and better trained social workers to work in delinquency control. The schools of social work who train these people are understaffed and lack adequate financing. It must be forcefully brought to the public attention that this situation is becoming progressively worse." Child welfare.-The Advisory Council on Child Welfare Services in its report to Congress in 1960 stated that "the personnel shortage in child welfare programs is acute and will become more so." It estimated a present need for an additional 3.000 professionally trained public child welfare employees, and for 4,300 by 1970. Public assistance.-The Advisory Council on Public Assistance recommended in its report in 1960 that "in order to improve administration, promote social rehabilitation, and help prevent dependency, States should increase the numbers and raise the qualifications of personnel administering the public assistance programs" and that the Federal Government should provide funds to assist the States in training public welfare personnel. Health. The task force reporting to President Kennedy on health services for the aged recognized the need for increasing the supply of trained health personnel, including social workers. Housing and redevelopment.-The National Association of Housing and Redevelopment Officials, meeting in January 1961, noted the need for social workers in housing projects to help troubled families. PERSONNEL BEING TRAINED The 56 graduate schools of social work graduated 2,162 social workers in 1961. Although this is an increase over previous years, it falls far short of meeting the needs described above. It is just about sufficient to replace social workers lost to the field through normal attrition. Professional education in social work consists of 2 years of study in an accredited graduate school of social work leading to a master's degree. This study includes, in addition to classroom work, extensive field instruction in actual practice in a service agency, under close supervision. A list of these schools is attached. PROJECT ON PUBLIC SERVICES FOR FAMILIES AND CHILDREN Sponsored by the New York School of Social Work, Columbia University, New York, N.Y. THE PRACTICAL VALUE OF SOCIAL WORK SERVICE: PRELIMINARY REPORT ON 10 DEMONSTRATION PROJECTS IN PUBLIC ASSISTANCE (By Winifred Bell, April 20, 1961) During the last decade numerous demonstration projects carried out in public welfare agencies have provided convincing evidence that substantial savings to the taxpayer can be secured by reducing caseloads of public assistance workers so that they have time to counsel actively with the troubled families seeking financial aid. Our past efforts to save money have led us to keep assistance grants to the minimum, to insist upon tight controls over eligibility, and to spread the caseloads over small, untrained and poorly paid staffs. The 10 demonstration projevts reviewed to date consistently show that this has been a "penny-wise, poundfoolish" approach. It is, in fact, one way to guarantee that dependency will not only persist but will increase. The cost of dependency is not easy to measure. Certainly, it far exceeds the cost to the public assistance agency, but even viewing this limited aspect of the problem, unless our investment is returning some dividends in terms of preparing families for independent living, we are wasting money. Our present pennypinching policies could not be better designed to encourage the continuation of dependency, not only for this generation but for generations to come. It could not better promote high turnover of staff, wasteful concentration on airtight controls at the expense of time to give constructive help. If we did not know better, it would be more understandable. The conclusions set forth in this paper are not new. They have been presented in a variety of forms by their sponsors, but the impression is secured that they are in, but not of, the public domain. What do they prove? (1) It is wasteful to concentrate the efforts of public assistance agencies exclusively on the determination and verification of eligibility. This may well continue to be the focus for those families with simple, uncomplicated economic need including mothers who are needed at home to care for young children. But for those with complicating social problems we must focus our efforts on discovering the obstacles to self-help and provide services to strengthen families if we wish to save money. (2) No investigator or social worker will have time to counsel with families unless he is responsible for only a "reasonable caseload," generally defined as ranging from 35 to 50 cases. (3) Skilled supervision and inservice training programs are essential to a constructive program in public assistance. This is particularly true in these days of |