most appropriately be the State department of public welfare, but as a matter of principle we would doubt the wisdom of such a specification in Federal law. Rather we believe it would be more desirable for each State to make its own designation of the appropriate agency in the light of its own circumstances. I should also like to submit that the greatest potential for the development of such services lies within the existing structure of the State and local public welfare agencies. Juvenile delinquency arises from many sources and it, therefore, can only be dealt with through a comprehensive approach. The existing public welfare programs encompass a range of functions and responsibilities which are compatible with this task. It must be readily acknowledged at the same time that no State through its public welfare programs or in any other way is currently in a position to deal satisfactorily with juvenile delinquency. One of the serious shortcomings is the lack of coordination and common purpose among the many agencies and services that are involved, and the continuing tendency to fragment and particularize these services that should in fact be brought more closely together. The American Public Welfare Association has long been concerned with this as well as with other aspects of the problem of developing adequate juvenile delinquency services. As an expression of this concern the association's board of directors has adopted a policy statement on "State public welfare department responsibility for leadership in juvenile delinquency services," which sets forth in some detail the nature and substance of public welfare responsibilities in this respect. I am submitting a copy of this published statement which I should like to have made a part of the record. I should also like to call your special attention to the following passages which appear in the statement referred to above:

"NATURE AND SCOPE OF ACTIVITIES NEEDED

"While delinquency, in its technical sense, is a judicially determined status resulting from conflict with the law, so-called delinquent behavior is usually symptomatic of deprivations and disturbances affecting the total life situation of the individual. The prevention and treatment of delinquency, therefore, require a broad range of facilities and services that are designed to deal with all of the factors that affect the well-being of children and youth.

"Because a judicial finding is often made only after an individual is far advanced in delinquency, these facilities and services must be brought to bear at the earliest indication of maladjustment and upon those aspects of a child's life which may produce maladjustment. The community which expects to deal constructively with the problem of delinquency must consider what steps it can take to strengthen family life, to encourage wholesome community living, to bring about successful teaching and training of children, and especially to strengthen those helping services concerned with the social well-being of individuals.

"This means that in an attack on delinquency the whole community must be involved. The individual plays a part in his day-to-day contact with others and through the community programs he supports. Important roles are played by institutions in the fields of religion, education, recreation, employment, and health, both through their basic services to all and their work with individual children. In the forefront in this effort is the battery of services which deal with individual problems: The police, the courts, and the extensive system of social services which work directly with children and their families in providing individual casework services, and in assuring a basic income.

"The State welfare department is the agency of State government in a strategic position to provide the primary leadership within the State and to give the overall unified administrative direction so essential to a fully effective program.

"This is true for many reasons, some of the most compelling of which are the following:

"A. The prevention and treatment of juvenile delinquency require a wide range of services which in most aspects are concerned with the same problems that are dealt with by public welfare agencies in all of their other areas of responsibility. These include economic dependency, family breakdown, desertion and abandonment, domestic discord, parental neglect and abuse, behavior problems, and emotional disturbances.

"B. Public welfare has an existing structure in every locality in the Nation.

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"C. Public welfare agencies are already in touch with a large segment of the population that is highly exposed to conditions which lead to juvenile delinquency.

"D. State welfare departments are already deeply involved in community organization for developing needed services for families and children.” Personnel training

The present shortage of qualified personnel automatically places a very definite limitation upon the potentialities of any effort toward the improvement of services for the prevention and control of juvenile delinquency. Any expansion of staff by one agency is almost of necessity achieved by enticing workers from another agency where they are usually just as urgently needed. State and local governments encounter many obstacles when they undertake to augment their professional staff through educational grants and stipends. Because of the competitive situation that generally prevails, the agency that does make such an effort too often finds that it is merely contributing to the general supply, without deriving any greater advantage than its competitors. Very few agencies are in a position to justify such expenditures that cannot be shown as producing direct results for their own programs.

It seems quite clear, therefore, that the only way in which any appreciable inroad can be made on this chronic shortage of staff is through a major participation by the Federal Government in the training of professional personnel.

There is now Federal support for training of personnel, such as in the fields of mental health and vocational rehabilitation. In many respects the disciplines for these fields are the same as those required in delinquency services. In one sense, therefore, these training programs all contribute to the general pool and thus benefit all services. It should be noted, however, that these other services are also expanding, and use from the pool at least as much as they put in. Every other field must therefore contribute its share.

For these reasons we note with approval the specific authorization in H.R. 772 for an appropriation of $5 million for the training of personnel. It is our view that such a measure would be a step of major significance toward the solution of the chronic personnel shortages that currently hamper all serious efforts to alleviate the problem of delinquency.

Special projects

The Federal Government is also in a particularly advantageous position to support experimental and demonstration projects that are of general significance. Thoughtful observers are aware of a great many approaches that might be taken and resources that might be utilized in addition to those which are part of our current programs. The potentialities for police and court services, welfare programs (as, for example, aid to dependent children), religious groups, and for schools and the use of school facilities, are surely greater than we seem to realize. Carefully planned and evaluated projects for experimentation and refinement of techniques in these and many other situations hold promise of substantial advances for the total effort in the prevention and diminution of delinquency.

Such projects, too, are frequently of a nature to place them beyond the ordinary functions of either State or local government or of privately supported services. Some of these agencies, however, as well as universities and national organizations, do have knowledge and skills and resources that could be energized to produce these urgently needed findings if support of the kind contemplated in proposals now before your committee were forthcoming from the Federal Government.

The authorization of $5 million per year for these purposes, as provided in H.R. 3464, would enable a great number of agencies and organizations throughout the country to capitalize on talents and resources and knowledge that are not being fully utilized. These findings and demonstrations would point the way for everyone, with long-term results far out of proportion to the initial expenditures. We are most pleased to lend our support to this proposal.

In reviewing the provisions of this measure, it is our interpretation that these funds also could be used for training stipends and fellowships. Since it is not specifically so stated, however, we should like to suggest either a modification of the language or a clarification to that effect in the committee's report.

CONCLUSIONS

Juvenile delinquency is a complex, persistent, and pervasive problem which is related among other things to the rapid changes occurring in our society and to our negligence in fulfilling some of the obvious needs of children. We know of no measures to recommend which would bring about a quick and easy solution. Approaches must be made on many fronts as I have suggested in this statement. No one can say, however, that by taking these steps the problem will disappear or be reduced to negligible proportions in any specific period of time such as 4 or 5 or 10 years. Yet there must be some conception, on the part of agencies having responsibilities in this field, of long-term as well as short-term objectives. It would be especially encouraging if such objectives and the course of their attainment could be shared also by the Federal Government as one of the active participants.

The bills presently being considered by your committee emphasize certain specific objectives for immediate action. Projects to demonstrate and develop techniques and practices for the prevention, diminution, and treatment of juvenile delinquency would have a most important contribution to make. The training of personnel to work in this field would also be meeting one of the greatest needs in developing resources to deal with delinquency.

Similarly grants to States to stimulate and encourage the strengthening and developing of services is another area in which the Federal Government could participate with beneficial results. In this respect, may I emphasize once again the importance of what we speak of as the basic social services such as those that are designed to preserve and support wholesome family life for children. The prevention of delinquency cannot be achieved through approaches that are narrowly focused on that objective alone. Rather, there must be a concern for the well-being of all children, and in this way one of the results will be the prevention of delinquency. In his perceptive report on "The Shook-up Generation," Harrison E. Salisbury of the New York Times reviews the various explanations that are put forward of the causes of delinquency, and comes to the conclusion that "The child that is cared for does not become shook up."

While these basic services must be maintained for many more reasons than juvenile delinquency, they do nevertheness constitute the fabric into which all specialized programs must be woven. It is therefore appropriate here to refer also to the grants for child welfare services which are designed to assist the States in extending and strengthening these basic services. This grant program is established by the Social Security Act, and we appreciate the fact that it is a matter that comes before another committee, where we shall make our views known. But in the broad context of your committee's present concern there should be a realization that the delinquency-focused measures under consideration here today cannot achieve their true purpose unless they rest on a foundation of comprehensive services that reach the total community.

We believe your committee should recognize the fact, therefore, that the child welfare services grants, in their present proportions, have not kept pace with the increasing child population or with the growing needs for services. The present authorization of $17 million per year is not, in our view, sufficient for the task. But, even more to the point, the amount appropriated for the current year is only $12 million, and the same amount has been requested for next year.

Another important way in which the Federal Government can contribute to the general effort to reduce juvenile delinquency is through technical advice and consultation. Much valuable help of this kind is now being provided, primarily through the Children's Bureau. An augmentation of these services, however, would greatly assist the various agencies throughout the country in their efforts to raise their programs to new levels of effectiveness. At the appropriate time our association will therefore be testifying also in support of these objectives.

These proposals now before your committee are concerned with fundamentals. The need for action is urgent. We sincerely hope that your committee will be able to report out a bill incorporating as many of these objectives as possible. We should also like to see a bill that would allow for reasonably simple and flexible administration so that immediate steps might be taken toward progress in juvenile delinquency programs.

In conclusion, I should like to reiterate that there is an immediate need for all levels of government to intensify the efforts that are being made to deal constructively with juvenile delinquency; that certain aspects of this general effort can be most effectively undertaken by the Federal Government; and that there is a clear Federal interest as well as a responsibility in working toward a solution of this most difficult and serious social problem.

May I also express once again our appreciation to your committee, and especially to you, Mr. Chairman, for the conscientious and responsible approach you have continued to take over a period of years in these inquiries. This, to us, is a most hopeful and encouraging indication that constructive measures will be forthcoming which will contribute in a significant way to our common objectives. Mr. ELLIOTT. Our next witness is A. D. Buchmueller, the executive director of the Child Study Association of America. We are happy to have you, Mr. Buchmueller. Do you have a written statement?

Mr. BUCHMUELLER. I have some notes here. I would like to refer to them, and I would like to respectfully request permission to submit a document to the committee for the record with addenda in better shape than my notes.

Mr. ELLIOTT. Without objection, the written statement of Mr. Buchmueller when received will be made a part of the record immediately following the oral presentation he makes today.

You may proceed.

STATEMENT OF A. D. BUCHMUELLER, EXECUTIVE DIRECTOR, CHILD STUDY ASSOCIATION OF AMERICA

Mr. BUCHMUELLER. Thank you, Congressman Elliott, Congresswoman Green, and ladies and gentlemen.

It is on behalf of the Board of Directors and the staff of the Child Study Association of America that I am very happy to add my voice as commending Representative Elliott and Senator Hill on their enlightened concern for the American youth, as evidenced by the introduction of this bill so early in the session.

Particularly we would like to stress our pleasure at your emphasis on the preventive approach to the problems of juvenile delinquency and your recognition of the fact that unless we go to the roots of the matter and attack more successfully the preventive aspects, the conditions which gave rise to delinquency, we are merely bailing water with a sieve.

The Child Study Association of America is a voluntary nonprofit agency in the field of child development and parent education for over 50 years.

Mr. ELLIOTT. Did you say parent education?

Mr. BUCHMUELLER. That is right; our particular emphasis of work is on parent education and developing new methods of parent education and the training of other professional persons in the skills and techiques of parent education. This is a program and an organization that has been in existence for over 50 years, and throughout this time it has pioneered in ways of showing whereby parent-child relationships can be strengthened and through such lead to more permanent enrichment, more constructive family relationships. During these years we have worked with parents of children of all ages, both individually and particularly in groups in the development of parent group education.

Our programs are based on the belief that the family influence on child development is the strongest force in shaping his destiny and molding the character.

I believe modern child psychiatry offers today an ever-expanding body of supporting evidence. The work of CSA is grounded on this faith that overwhelmingly the parents of this country for the most part are good intentioned but do need a great deal of help in our complicated world today.

To parents, whoever and wherever they may be, the association offers opportunity to increase their understanding and seeks to develop in them the strength which is potentially there and can become more effective in the rearing of children if skillfully tapped.

As a result of these years of experience in parent education in which many ways of helping parents have been tested out and used, adjustments to the program have been made as new concepts have

been known.

In the light of what has been happening all over the country today, we have developed methods of training other persons, particularly social workers, clergy, religious educators and persons, public health nurses particularly, and teachers in the skills and techniques of parent-child education. Persons thus trained and supervised through the Child Study Association then are able to conduct parent group education programs within their own settings, within their own communities throughout the country.

We worked particularly with local as well as State and national organizations both public and private, in testing out these programs and developing new training programs, particularly within the past year on a relatively small scale because we are a relatively small organization, although it is national in scope.

Mr. ELLIOTT. What is the size of your organization?

Mr. BUCHMUELLER. We have a staff, a total staff, clerical workers and all, of no more than 30 people.

Mr. ELLIOTT. How many members do you have, if you are a membership organization?

Mr. BUCHMUELLER. We are a membership organization, and we have roughly around 5,000 members who receive our literature. Mr. ELLIOTT. They are scattered all over pretty well?

Mr. BUCHMUELLER. All over the country, that is right.

Mr. ELLIOTT. You may proceed.

Mr. BUCHMUELLER. Particularly in New York State and a number of Eastern States as well as Texas in the southwest regions we have cooperatively developed programs with the Children's Bureau in the training of public health nurses in parent education as preventive mental health and preventive delinquency measures.

We feel that with these new programs that are being developed at the present time and with sufficient resources to develop them on a broader scale we can be of tremendous help. We wish to be of help to the country and particularly to the Government if this bill as you have introduced it would be passed. Needless to say we are very much in favor of it.

I would be very happy to answer any questions the ladies and gentlemen will raise.