welfare and foreign relief agencies." Currently, the Survey combines this total with religious expenditures by political organizations, museums and libraries, and foundations. For recent years it is therefore necessary to estimate (1) total philanthropic contributions, (2) the proportion going to religious agencies, and (3) expenditures for health and welfare purposes by secular and religious agencies. Estimates on total philanthropic contributions in 1930-45 were taken from F. Emerson Andrews, Philanthropic Giving, 1950. For 1950, estimates on total contributions came from J. P. Jones, the American Giver, 1954; for 1955, the estimates were made by the Division of Program Research, using Andrews' methods. The estimates are based on data from the Internal Revenue Service, Statistics of Income, parts I and II. Data published yearly by the National Council of the Churches of Christ, showing the amounts received by various Protestant denominations, form the basis of the estimates of contributions to religious organizations. For the past 25 years, 14 Protestant denominations have reported yearly contributions. The 1926 and 1936 Censuses of Religious Bodies showed that contributions to these denominations made up nearly half of all contributions to all religious bodies. The projections of contributions to all religious denominations based on these data have been adjusted for the rates of growth of Protestant, Catholic, and Jewish church membership as reported yearly by the National Council of the Churches of Christ. Estimates of contributions for secular health and welfare purposes combined were obtained from the 1950 Andrews study; for 1955 the ratios in that study were applied to the total estimates for the year. To obtain estimates for the year. To obtain estimates of contributions for health purposes and for welfare purposes and for the health and welfare categories listed in table 3, reliance was placed primarily on the surveys, Expenditures for Health and Welfare Services in Selected Urban Areas, 1952 and 1955, prepared by the United Community Funds and Councils of America. This material was supplemented by data prepared by the Council of Jewish Federations and Welfare Funds, the Catholic Charities, and the National Council of the Churches of Christ. The estimates in table 3 cover total expenditures from contributed funds by these agencies for all purposes, including such items as administrative expenses, rent, capital expenditures, and relief payments. Expenditures from public funds and from other receipts, such as payments for services, are excluded. Religious contributions for health and welfare purposes were estimated by applying ratios appearing in the Yearbook of American Churches to the estimates of total contributions for all religious purposes. Data on church construction are taken from the table presented each month in the Monthly Labor Review (table F). Data on contributions for educational purposes are from the Office of Education, Biennial Surveys of Education in the United States, chapter 4, section 2. Estimates on foundation expenditures are taken from F. Emerson Andrews, Philanthropic Foundations (Russell Sage Foundation, 1956). Data on foundation research expenditures came from the National Science Foundation, Scientific Research Expenditures by the Larger Private Foundations, 1956. Mr. CURTIS. Now to some specific questions. On page 11 you said that development of adequate day-care services has stood relatively still. I know in my own community it certainly has not stood still. I was wondering on what basis you made that statement? Secretary RIBICOFF. We have a report here dated October 1960, the licensed day care facilities for children, which contains the information and I would like to insert in the record the full report, which indicates there were in the United States 4,426 licensed centers. Mr. CURTIS. 4,000? Secretary RIBICOFF. 4,426 licensed day care centers. The aggregate capacity of licensed centers is 141,138 children. These are broken down: Public, 276 licensed centers with a capacity of 15,561 children. Mr. CURTIS. What was it, say, 10 years before that, or 5 years? We are talking about a statement saying that this has stood relatively still. I was under the impression this was an area that we actually had been moving ahead on, and we really had not in this area up until the past couple of decades, and that we have rapidly moved into it. That is what I am trying to check, so there would be a comparative figure. Secretary RIBICOFF. We will try to get you figures of what it was 10 years ago. Mr. CURTIS. Whatever the applicable figure, so that we can get the rate and then possibly put out the figure of how much we still have to go, because even though we may be going on at a great rate, maybe we have a bigger problem than that rate will meet. In this connection, I do think it is important to relate the extent to which kindergartens are being put into school systems because at least at the age of 5, the need disappears for the day care centers. In many communities there still are not kindergartens, so I am anxious to get an evaluation of that. Secretary RIBICOFF. May I place in the record at this point the present status? Mr. CURTIS. Yes, I would appreciate that very much. (The information referred to above follows:) During World War II Federal funds were made available for day-care facilities because of the unprecedented number of women entering industry. Over 3,000 day-care centers were developed during the war, with funds appropriated under the Lanham Act. At the peak of this program, in 1944, these centers were caring for 105,000 children. Between 1942 and 1946, the period when funds were available under the Lanham Act, over $51 million of Federal funds were used for this purpose. Following the war, practically the entire program developed under the Lanham Act disappeared. As stated in a 1953 report on "Planning Services for Children of Employed Mothers," published by the Department of Labor and prepared by a subcommittee of the Interdepartmental Committee on Children and Youth: "The closing out of services due to cessation of Federal funds, brought to the foreground a need of long standing in hundreds of communities. Many parents who had found the wartime programs for children a good solution, providing supplementary care while they were employed, urged that their communities take action to keep them. But most communities found it impossible to carry on these services without assistance from other sources. The uncertainties of financing programs for children of employed mothers have greatly reduced the quality and number of these programs in the States at the present time." During the decade 1950-60, the number of married women in the labor force with children under 18 years of age increased from 4.6 million to 8 million, a rise of 73 percent. The number of these women with children under 6 years of age rose from 1.7 to 2.9 million, while the number with children 6 to 17 years of age rose from 2.9 to 5.1 million. Day-care facilities, of course, while primarily needed for children of working mothers, are also needed to meet other problems such as illness in the family. All States participated in the national survey of licensed day-care facilities for children conducted by the Children's Bureau in 1960. The survey was limited necessarily to licensed facilities that were known to governmental authorities through the licensing process. It provides, nevertheless, a satisfactory approximate estimate of the number and the capacity of the day-care facilities that are now available. A total of 4,426 licensed day-care centers with a capacity to serve 141,138 children were reported in the survey. In addition, 13,577 licensed family day-care homes with an aggregate capacity to serve 42,194 children were reported. The combined capacity for both types of facilities was 183,332 children. There is no past survey of a comparable kind that would permit a precise measurement of the rate of growth of day-care services in the United States. Evidence from various services shows, however, that these services, especially those under the auspices of public and voluntary social agencies, have stood relatively still in recent years and have not kept pace with the great increase in working mothers nor with the national need. Publicly operated or supported day-care facilities are extremely limited in number and have been developed in only a few communities, notably Philadelphia, New York City, and the States of California and Texas. In the Children's Bureau survey, only 276 licensed day-care centers operated by public agencies were reported, of which 235 were in California. The aggregate capacity of the publicly operated centers was 15,561 children, a figure that is reduced to 2,252 if California is excluded. Day-care facilities under the auspices of voluntary social agencies also have shown relatively little or no growth in recent years. The Child Welfare League of America, the national standard-setting organization of voluntary child caring agencies in the United States, reports that fewer than 50 of its member agencies now provide day-care services and no growth in this number has occurred during the past 5 years. The league also believes that there has been no substantial growth of voluntary day-care services generally in comparison with the growth in the need for these services in recent years. In some communities, particularly during the period when Lanham Act funds were available, many day-care programs operated under the auspices of settlements and neighborhood centers. The National Federation of Settlements and Neighborhood Centers reports that day care in settlements definitely decreased after World War II leaving a gap in services that has not been filled. Evidence of the lack of growth of day care under voluntary agency auspices is also found in information provided by United Community Funds & Councils of America, Inc., or available to the Children's Bureau, on the number of day nurseries receiving financial support from community chests and united funds in selected cities in 1955 and in 1960. The following tabulation shows the number of day nurseries for which data is readily available, in 1955 and 1960: Data on chest expenditures for day care in some of these cities also indicates that there has been little or no increase in the ability of existing nurseries to serve more children. United Community Funds and Councils of America has estimated that in 1960 only some 360 of the 2,200 funds and chests in the United States and Canada (16 percent of all funds and chests) allocated some funds for day-care services. Chest-supported services by and large, are found primarily in the largest cities and far more rarely in the smaller communities. This finding is supported by data obtained in the Children's Bureau survey according to which only 3 percent of the Nation's licensed day-care centers are located in communities having a population under 5,000, although 35 percent of the Nation's population live in places of this size. Also, 10 percent of the licensed centers are located in communities having a population of 5,000 to 25,000, whereas 15 percent of the Nation's population live in places of this size. There is evidence that in these smaller communities and in rural areas there also is need for day-care services for working mothers and for families that need day care for reasons other than the employment of the mother. A survey conducted in 1958 by the Bureau of the Census, at the request of the Children's Bureau, revealed that 36.5 percent of all mothers in the Nation who were employed full time and who had children under 12 years of age were living in rural areas. The percentage was highest in the South (49.4 percent).1 1 "Child Care Arrangements of Full-Time Working Mothers." Children's Bureau, Publication No. 378, 1959, p. 8. Mrs. Judith Cauman, a recognized expert on day-care services for children, stated in a recent article: "A day nursery is often among the oldest social agencies in our communities, yet day-care service is still considered by some to be experimental, something new almost to the point of being untried * *. Voluntary support of day-care programs as child-welfare services, through the United Fund or other sources, seems to be suffering from attrition in many communities. Day care as a child-welfare service appears to remain largely in the future." " The one type of day-care facility that undoubtedly has grown in recent years has been the proprietary or commercial day-care center that is operated for the financial profit of the owners or operators. The majority of the licensed centers reported in the Children's Bureau 1960 survey (2,497 centers) were commercially operated. Reports from State agencies also testify that the number of these facilities has increased. Many of these facilities provide good service and are an important community resource. Unfortunately, however, many of them really are not available to those families unable to pay the full cost of good day care, a service that is not cheaply provided. Unfortunately, also, many commercial centers provide inadequate care, protection, and education for children, or barely meet minimum standards of adequacy. No precise measurement of the full extent of the need for day-care facilities in the Nation is available, nor is it possible to specify with precision the numbers of additional day-care centers and family day-care homes that will completely meet the needs of today and the expected greater needs of tomorrow. The need is substantial. A 1958 survey made by the Bureau of the Census, at the request of the Children's Bureau, showed that 400,000 children under age 12 of mothers who worked full time had no planned supervision, and were expected to take care of themselves while their mothers worked. This count is an understatement since the large numbers of mothers who work part time were not covered in this survey. A study made by the Department's Bureau of Family Services showed that, in 1958, about one-sixth of the ADC mothers were employed-twothirds part time and one-third full time. Of the ADC children under 12 whose mothers worked full time, one in nine had no daytime care arrangements; of those whose mothers worked part time, one in seven was expected to care for himself." The number of children enrolled in kindergartens has increased in recent years. Between 1955 and 1960, the number of 5-year-old children enrolled in public and private kindergartens rose from 1.5 to almost 2 million, a 30-percent increase. Kindergartens, however, do not meet, nor are they intended to meet the need for care and protection of children of working mothers or of families with personal and social problems that require day-care service. Kindergartens commonly operate on a one-half day basis and clearly could not meet the needs of those children for whom full-time day care is needed. Kindergartens are primarily educational facilities and have a different function than day-care facilities, whose function it is to provide substitute care and protection for children during daytime hours when their parents are unable to provide for their care. Nor does the need for day care end when a child reaches kindergarten age. Day-care facilities are equally necessary for older school-age children during after-school hours or other periods when their mothers are not available to take care of them. "Family Day Care and Group Day Care: Two Essential Aspects of a Basic Child Welfare Service," Child Welfare. October 1961, pp. 20-23. a "Characteristics and Financial Circumstances of Families Receiving Aid to Dependent Children. Late 1958." Bureau of the Census, Current Population Reports, series P-20, Nos. 66 and 110. U.S. DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE Preliminary Report LICENSED DAY CARE FACILITIES FOR CHILDREN Report of a National Survey of Departments of State Governments Responsible for Licensing Prepared by Child Welfare Studies Branch Division of Research Children's Bureau October, 1960 |