submit that the Association, on the basis of its demonstrated record, stands ready to initiate a specific program to make a contribution in this national emergency to prevent family breakdown and juvenile delinquency-to strengthen family life and develop responsible young citizens.

Mr. ELLIOTT. Our next witness is Mr. Francis Bosworth, of the National Federation of Settlements.

Mr. Bosworth, before you start, may I say that earlier this morning the gentlewoman from Pennsylvania, Mrs. Kathryn Granahan, called me and stated that a conflict in her arrangements for this morning in her committees made it impossible for her to be here, but that she would like to be here and she was interested in your testimony and she would look forward to seeing your testimony when it is printed. I wanted you to know that.

Having said that, and with the knowledge of our time, will you proceed?

Mr. BOSWORTH. I would like to deposit my full statement; I have made some notes from it at this time.

STATEMENT OF FRANCIS BOSWORTH, NATIONAL FEDERATION OF NEIGHBORHOOD AND SETTLEMENTS

Mr. BOSWORTH. I am Francis Bosworth, executive director of the Friends Neighborhood Guild at 8th and Fairmont, in Philadelphia, and I am here testifying on behalf of the juvenile deliquency control project bill H.R. 3464, because it offers the possibility of fact finding in so many phases of this problem that we need. I am testifying on behalf of the National Federation of Neighborhood and Settlements, made up of 300 member agencies located in 96 cities across the United States. The great majority of these are located in the downtown areas of our large cities.

Juvenile delinquency is by no means confined to this area. There is not a settlement in the country that does not work with troubled youth. We recognize our responsibility in this problem but none of the settlements have the means to do an adequate demonstration. In Chicago a number of settlements have worked with hard-toreach youth. In Boston the settlements have been involved with another kind of demonstration which I believe you heard about in your testimony on Tuesday. They do not have funds to go further and explore in some of the unsolved problems uncovered.

In Minneapolis another of our member agencies has a joint project with units studying behavior of delinquent boys to see if knowledge acquired by universities can help solve the problem.

This agency is now seeking some $40,000 for this project. Here in Washington, D.C., the settlements are trying to find an answer to the problem of the uneducatable youth who are roaming the streets and getting in trouble.

I should like to tell you of one special juvenile delinquent control project in Philadelphia, which if this bill becomes law is the type of action research demonstration and on-the-job training which could be conducted elsewhere.

Your bill would also provide that we would know what others are doing and that our experiences could be evaluated and made available in this critical problem of disturbed and neglected youth.

Our project is called Operation Poplar. Although our united funds failed to make its goal for funds in 1956 they decided to allocate

half of their reserves, $100,000 "for urgently needed work in the juvenile delinquency fields as one of the most pressing problems confronting our community."

A special Committee of the Health and Welfare Council studied 63 proposals submitted from Philadelphia, Delaware, and Montgomery County. They decided to commit all of the money to one demonstration project. They decided on the proposal of Friends Neighborhood Guild because it was a small area within the total guild neighborhood with a high rate of juvenile delinquency, the second highest in the city.

Our program was to work with negelected disturbed youth and their families. Our cause, a total lack or breakdown of family life and responsible relationships between parents and children and the absence of concern and responsibility of the community for its children. and youth.

Friends Neighborhood Guild was to coordinate the project which we call Operation Poplar, because it is in that area. We have a director, a community worker, a case worker, and an area youth worker or gang worker. To this is added a full-time worker from the Girl Scouts and workers from the YWCA. Also the city department of welfare, recreation, police and the courts and the Pennsylvania Department of Public Assistance agreed to give cooperation. Temple University's department of urban studies was to make an internal evaluation of the project.

The area is small, just 13th and 14th wards, about one-eighth of a square mile, with a population of 25,000 people.

Our method was to concentrate on the most difficult problems within this area, gang leaders, boys who had committed major crimes, on probation, or released from institutions, families who had not responded to any existing agency program up to this date.

The workers went to these families, did not take "No" for an answer, but got their foot in the door and pushed their way in, using public authority when necessary. Actually, we encountered very little resistance when we were prepared to give all the time the people

needed.

We came to wonder if finally, and in one of our evaluations we said we wondered, if the words "hard core" were not really the social agencies instead of the families, for we found in many cases getting social agencies to change their programs so as to give time to the great educational need was one of our most difficult problems. The families responded.

There were in this area five major gangs. There are none today. Our program was to help individual boys. We have a committee of the neighborhood to find jobs for these kids. We have block leaders, training meetings by which adults are trained to give time in playgrounds, scout leaders, block clean-ups, chaperones for dances. A local private business school, William Penn Business School, has agreed and has started a special program to train girls who can do clerical work and who are mothers of illegitimate children. These girls are under 17.

We have a committee of mothers that takes care of these children while the girls are in the business school. There is no question that once a girl has an illegitimate child she certainly is a real danger to

the total community in the attitudes toward her and she toward herself. Quite often we spend too much of our time with the boys.

This area was second in juvenile delinquency in the city when we started. By the end of the first year it was sixth. And now we complete the second year by May 31 and the area is now eleventh in juvenile delinquency in the city, or the same as the city average as a whole. The project will have 1 more year to go. It will have spent $200,000 and this is the type of thing which I think your bill is trying to make available.

We find one of our biggest problems is that everybody else interested in this problem is raiding our staff so we cannot hold our people. together long enough so the same people have continuity. We find more continuity from the volunteers among the neighborhood than we do of our staff.

I would like to say that the urgency of your bill, a bill attacking these problems becomes very great indeed when we realize that 5 years from now our teenage population,, 13 to 19, will be 40 percent greater than it is today.

Mr. ELLIOTT. Mr. Bosworth, in view of the fact that Mr. Lafore is from the city of Philadelphia or its environs I am going to recognize him first to ask any questions he may have.

Mr. LAFORE. Mr. Chairman, not from the city of Philadelphia, but I am from a neighboring county and I am aware of this program of Mr. Bosworth's and his organization and I think that he deserves a great deal of credit for this outstanding work. I also feel, without being very knowledgeable about the subject, it would probably be my opinion that it should be used for a standard for work in other sections, because I am also familiar with this territory or area and the job they have accomplished there is remarkable. I think they deserve a great deal of credit for their work.

Mr. ELLIOTT. Thank you, sir.

Mrs. Green, of Oregon.

Congresswoman GREEN. I have been interested in your statement and I would also agree with my colleague from Pennsylvania. I think probably the settlement houses have really gone into the area. and done the work with the people that needed the help probably more than any other organization.

I was interested in one comment, that your greatest problem was that other people came in and were raiding your staff.

Why is this your greatest problem?

Mr. BOSWORTH. Because you don't know whether a person can do this job until you have seen them do it. We have had many applicants; we find our own sifting of applicants is very questionable because a person can have all the book requirements but until they get some on-the-job training we are in a difficult position. A young man can have a Ph. D. in social work or anthropology but unless he is willing to go work on the streets from 8'at night until 3 in the morning he is not worth much. We have to have the kind of people who are willing to do this, caseworkers who are willing to really work.

Actually, I would like to mention in regard to this, if I may, that we found that within this area of 25,000, all of the gang leaders, potential gang leaders, were in 26 families; and so by a concentration on 26 families, which is all we have had time and money for so far,

that this lowering of juvenile delinquency is really an intensive work with 26 families out of 25,000 people.

Congresswoman GREEN. Health, Education, and Welfare, in 1957, recommended that the largest amount of Federal funds should go to grants-in-aid for the States on projects that are underway. Are you in favor of this?

Mr. BOSWORTH. I think the present bill which has a council and would not send it to the States would have merit at this time because

even

Congresswoman GREEN. You say "the present bill." We have about a dozen bills in the committee.

Mr. BOSWORTH. I am testifying on Mr. Elliott's bill because it allows for a council of 12 to pick projects. I do not think, for instance, you can divide $50 million among 48 States and get very far. I think that demonstration projects which would bring out real conclusions, I do not know how many, but in which you would spend enough to find out something within a specific number of projects would perhaps do the greatest good to all. It is the same principle we had with 63 projects and the first idea was to divide up $100,000, which was not very much, and that has been increased to $200,000 and yet has all been put in one project.

Congresswoman GREEN. Have you studied the other bills before the committee?

Mr. BOSWORTH. I studied the bills last year and I know your bill for training, and also your library bill which allowed the libraries to train librarians. This other job, in action, research project, would seem to offer the greatest good for a limited amount of money.

Congresswoman GREEN. You are opposed to a program for grantsin-aid to the States?

Mr. BOSWORTH. I am not opposed to anything that might help in the field.

Congresswoman GREEN. Are you opposed to the Federal Government spending funds for the training of more personnel?

no.

Mr. BOSWORTH. I am not opposed to it.

Congresswoman GREEN. But are you in favor of it?

Mr. BOSWORTH. I am in favor of it but do not give it top rating;

Congresswoman GREEN. Are you basing your testimony on the assumption that this is the one and only bill that can be passed? Mr. BOSWORTH. I am not basing it on that.

Congresswoman GREEN. You are in favor of grants-in-aid to the

States?

Mr. BOSWORTH. I am chiefly in favor of action, demonstration projects which can be selected on the basis of the possibilities of what that neighborhood has to offer and what the responding agencies can bring to the problem.

Congresswoman GREEN. Do you think this is the only responsibility of the Federal Government at this time? Do you think the Federal Government has no responsibility to offer any leadership or to offer any Federal funds for either the training of personnel or for grants-in-aid to States?

Mr. BOSWORTH. By no means, no; I would be very much for this

course.

Congresswoman GREEN. You would be?

Mr. BOSWORTH. Of course I would. I cannot imagine any of us turning down any program. It would seem to me that the Federal Government's responsibility in this field would be most admirable. Congresswoman GREEN. Then your testimony is really based on the fact that you think, from a political standpoint, that the bill you have testified to is the only one that has a chance of passage?

Mr. BOSWORTH. No; I do not. I feel that the provisions of 3464 offer the wise expenditure of $5 million.

Congresswoman GREEN. And you think $5 million is all the Federal Government can spent on the 600,000 juvenile delinquents we have in this country?

Mr. BOSWORTH. It is a miserably small amount and that is why I read into the record our amounts.

Congresswoman GREEN. Then why do you recommend it?

Mr. BOSWORTH. Because I think $5 million spent wisely would give

us so much more than we have now.

Congresswoman GREEN. But a person like you who has taken leadership in this field, why do you come to this committee and say, "It is a miserably small amount, the needs are much greater but this is all we recommend?"

Mr. BOSWORTH. It is not all I recommend but I think that it is $5 million more than we have now and also I would assume, just as we did in our Philadelphia project, that you would put it where people were able to use some of their own resources to add to this.

Congresswoman GREEN. Thank you.

Mr. ELLIOTT. The gentleman from Connecticut.

Mr. GIAIMO. No questions.

Mr. ELLIOTT. Thank you very much, Mr. Bosworth.
Mr. BOSWORTH. Thank you, Mr. Elliott.

(Complete statement of the witness will be filed with the clerk, Subcommittee on Special Education, when furnished.)

Mr. ELLIOTT. Now, we have a little time, apparently, that has not been taken, and I would like to go back to previously scheduled witnesses.

Miss Butler, would you be willing to start now?

Miss BUTLER. Certainly.

Mr. ELLIOTT. You may proceed, Miss Butler.

Miss Butler is from the General Federation of Women's Clubs, and you will identify that organization for the record, Miss Butler.

STATEMENT OF SALLY BUTLER, GENERAL FEDERATION OF WOMEN'S CLUBS

Miss BUTLER. Mr. Chairman and members of the committee, I am the legislative director for the General Federation of Women's Clubs, which is a membership organization made up of women, 5 million of them in this country. It is an international organization. Of course, I cannot say that there are actually 5 million, but that is the record upon which they base their membership, because they are the wives usually of the banker, the Congressman, the milkman, or whoever, across the country. It is a cross section of women that are banded together.