To illustrate, I would like to quote several observations on our manpower efforts from a paper prepared by Dr. Garth L. Mangum, of the National Manpower Policy Task Force, incidentally, a former staff member of this subcommittee.

This paper was prepared and issued about 2 months ago, and I quote:

1. There is no Federal manpower policy in the dictionary sense: "A definite course of action selected from many alternatives, and in light of given conditions, to guide and determine present and future decisions."

2. The vast array of Federal manpower programs does not emerge as part of any systematic effort to identify and provide each of the services needed by various disadvantaged groups or by all the disadvantaged. Instead individual acts were written, considered, and amended in rapid succession to meet current crises, real or imagined, with little attention to their interrelations.

I suspect that is a statement with which my good friend from Vermont would concur.

3. The administrative capability to deliver manpower services has yet to be developed. At the local level there is no single agency or combination of easily accessible institutions where those seeking help can find it. Neither has any community the resources to provide some type of service to all who need it. A multiplicity of Federal funding sources encourages interagency competition at the Federal level and a proliferation at the local level placing a premium on "grantsmanship."

4. Surprisingly little has been done, considering the number of programs and the level of expenditures, to develop or train capable staffs at any level of government.

The shortage of skilled manpower, I stress again, is critical. We have to do something about it.

5. Administration officials and Members of Congress have been too impatient to await the results of new and existing programs and to allow for restructuring, removal of negative elements, and finally their expansion into effective programs. As a result, there has been an excessive resort to gimmicks and to attempts to devise "instant policies for instant success." The procedure has become a familiar one. New approaches are designed intuitively rather than empirically. They are launched with public relations fanfare, complete with numerical goals and early target dates. Manipulation of numbers to "prove" success then becomes a major staff function until a quiet burial of the goals and targets can be devised.

6. For no programs are there adequate valid data for evaluation of strengths and weaknesses and no program currently has a reporting system capable of producing such data.

I point out this is not the chairman of this subcommittee speaking, it is Dr. Garth Mangum, one of the most qualified men in the manpower field in the country today.

While these statements are taken out of context, they illustrate some of the problems to which I hope we will find constructive solutions in these hearings, and if there is no objection to my friend from Vermont, I would like to have placed in the record at this point the entire text of Dr. Mangum's paper, evaluating Federal manpower programs. Without objection, this will be done.

(The text of bills S. 3063, S. 3249, with amendment, S. 2938, and the document referred to above follow :)

90TH CONGRESS 2D SESSION

S. 3063

IN THE SENATE OF THE UNITED STATES

FEBRUARY 29, 1968

Mr. CLARK (for himself, Mr. HARRIS, Mr. HART, Mr. KENNEDY of New York, Mr. MONDALE, Mr. MORSE, Mr. NELSON, Mr. PELL, Mr. RANDOLPH, Mr. TYDINGS, Mr. WILLIAMS of New Jersey, and Mr. YARBOROUGH) introduced the following bill; which was read twice and referred to the Committee on Labor and Public Welfare

A BILL

To provide employment and training opportunities for lowincome and unemployed persons.

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 3 That this Act may be cited as the "Emergency Employment 4 and Training Act of 1968".

FINDINGS AND DECLARATION OF PURPOSE

SEC. 2. (a) The Congress finds that—

(1) certain urban and rural communities and other

areas in the Nation are presently burdened by severe

unemployment and underemployment. Many such areas

2

contain large concentrations or proportions of persons who are unable to obtain jobs in regular competitive

employment because of lack of education, occupational skills, work experience, or transportation and because of artificial barriers to employment and occupational ad

vancement. Many of the affected areas are doubly handi

capped by the lack of sufficient jobs for all the potential labor force. These conditions are destructive of human dignity and result in a loss of national productivity. In many localities such conditions have reached crisis proportions and often contribute to social unrest and civil disorder;

(2) the migration of unskilled residents from rural areas which lack employment and other economic opportunities to urban areas aggravates such conditions, thereby impeding the effectiveness of manpower training, job development, and related efforts in urban centers while at the same time undermining the economic potential of such rural areas;

(3) at the same time there is a huge backlog of need for additional community services and facilities in both urban and rural areas in such fields as those which

(a) contribute to the development of human potential,

(b) better the conditions under which people live, learn,

and work, and (c) aid in the development and conserva

tion of natural resources; and,

223

21

3

(4) to the extent practicable private employers should provide the training and related services neces

sary to enable such persons to fill jobs in the private sector of the economy.

(b) Therefore, it is the purpose of this Act

(1) to provide meaningful public and private employment opportunities in community service and development and related activities which will relieve severe unemployment and underemployment in both urban and rural areas and contribute to the national interest by fulfilling unmet needs; and

(2) to provide incentives to private enterprise employers other than nonprofit organizations to invest in the improvement of the Nation's human resources by hiring, training, and employing low-income and un

employed persons who reside in areas burdened with

severe unemployment and underemployment.

TITLE I-COMMUNITY EMPLOYMENT AND

TRAINING

FINANCIAL ASSISTANCE

SEC. 101. (a) The Secretary of Labor (hereafter re

22 ferred to as the "Secretary") is authorized to provide finan23 cial assistance in urban and rural areas designated in accord24 ance with section 301 of this Act for part or all of the costs 25 of programs which provide meaningful public services and

4

1 other employment opportunities for unemployed or low2 income persons. Such programs shall include, but need not be 3 limited to, the following:

4 (1) Jobs created or made available to provide com5 munity services and development and related activities in 6 such fields as health; public safety; education; recreation; 7 streets, parks, and municipal maintenance; housing and 8 neighborhood improvement; conservation and rural develop9 ment; beautification; and other fields of human betterment 10 and community improvement. Such jobs shall include (A) 11 those which can be made available immediately to persons 12 who are otherwise unable to obtain employment, (B) those 13 which provide placement resources for persons completing 14 training under titles I and V of the Economic Opportunity 15 Act and other relevant manpower training programs, and 16 (C) those which use the skills of unemployed persons in 17 areas with a chronic labor surplus. Priority shall be given to 18 projects which are labor intensive in character.

19

(2) Activities designed to assure that persons employed 20 in such jobs are provided opportunity for further education, 21 training, and necessary supportive services so that they may 22 be prepared to obtain regular competitive employment in the 23 future. For this purpose, not to exceed 20 per centum of the 24 funds appropriated under this Act may be used by the 25 Secretary for the purpose of carrying out training programs