and desire of people in hundreds of communities in this country for help and suggestion about how they can mobilize and make effective their purposes "to help." To know, just as one example, of the situation involving migratory workers and their families, is to know how much National Service Corps men could do in scores of communities to help and stimulate the community to improve the treatment of this problem.

In other communities there is, of course, no need whatsoever for the kind of service the Corps will provide. It is an important feature of the proposed program that the decision about this will be left entirely to the local communities. The Corps will act only in response to the requests of particular communities and the requests will have to show how the work to be done will continue after the corpsmen have left.

I should like to develop in somewhat more detail the implications of the fact that the problem we face in this Nation today is not one of overall need and want, but rather of pockets of disadvantage which have developed in the midst of general well-being. They are pockets of poverty, of individual failure to achieve employment opportunity, and of personal handicaps.

1. First is the problem of poverty.

We find it in rural areas, for example, among workers who migrate to follow the crops. In rural areas there is a high incidence of families with irregular employment at low wages, substandard levels of health and housing, inadequate diet, and limited educational attainment. It is in these areas that the established public services are often weakest.

Migratory workers shoulder even greater burdens, and these burdens fall heavily on the wives and children who travel with them. Community services and facilities are often not available to workers on the fringes of the community, and migratory workers are seldom in the community long enough to learn how to find them. Some clearly defined and widespread problems of migratory workers will be dealt with by recent and pending legislation, but we need added stimulus for direct help to these people. Residence requirements in State and local laws often exclude them from the services and protections others in need can call upon. Families may recognize that their children should not be in the fields-but there may be no care for them in the camp, and local schools may be ill prepared for educating them.

We find this poverty in the Appalachian region: There has developed a national awareness of the extremely serious nature of the problem in this region, and while the pockets of distress have varied in their size, they have existed for a long time in both recession and prosperity. The enactment of the Area Redevelopment Act has provided a finer cutting tool to meet the need for local economic development and retraining of the unemployed-but the problem requires more than a single solution.

We find poverty in large urban areas: While it is in urban areas that the evidences of prosperity are most visible and community services most extensively developed, pockets of poverty and deprivation exist here, also. The problems of the slum areas are not new. They have existed in varying forms during much of our existence as a nation. Poverty in urban areas often has a different origin than in rural and depressed areas, but deficiencies in basic education and social adaptation are common to all these areas. These deficiencies are compounded by a disappearance of unskilled jobs in much of the urban machinery of production. As the requirements of education and training that people must satisfy in order to emerge from slum conditions have been getting stiffer, the deprived urban worker is in greater need of help than in the past.

We find hardship among American Indians: On many Indian reservations the existence of high illiteracy rates retards progress in all areas. In addition to a need for basic education, there is a need for health and sanitation facilities, child care facilities, development of work skills, adequate housing and more advanced farming techniques. Many young people who get their schooling off the reservation are forced to return when they find limited job opportunities. Indians who leave the reservation for seasonal farmwork undergo the problems of migratory workers generally.

2. Second is the problem of employment opportunities for youth. Throughout 1962, young persons under 25 represented over one-third of the unemployed (but less than one-fifth of the labor force). The rate of unemployment among school dropouts is much worse than among high school graduates. In the most recent survey available, 27 percent of the young people who dropped out of school between January and October of 1961 were unemployed in October of 1961.

During the 1960's a total of 26 million young people are expected to enter the labor force, many of them untrained and unskilled.

The first necessity is to provide enough jobs and the second is to provide the education, training, and work experience that will enable youth to bridge the gap between school and employment. A third need is to recruit volunteers and adequate trained counselors to talk to the youth, to motivate them, to guide them into productive adulthood.

3. Third is the problem of those burdened by mental ill health, or the serious infirmities of age, or other failings for which more help, and more effective help, can and should be provided in this Nation.

Mental illness and mental retardation are among our most critical health problems. There are now about 800,000 such patients in institutions throughout the Nation-600,000 for mental illness and over 200,000 for mental retardation. The President has proposed a program that will take us far toward what a nation of our resources should be doing. But there is a pressing need for a variety of volunteer services beyond those now available if our mental institutions are to be enabled to return more of these people to useful lives.

Many elderly people now in nursing homes, custodial institutions, and even hospitals could be helped to the point where they would be able to take care of themselves, if there were more volunteers and other aids to work with the shorthanded professional staffs.

One of the difficulties in penetrating these three types of pockets is the critical shortage of people in the occupations that can be of assistance. In the professional services, where the period of preparation is protracted, there are projected or existing shortages. Here the shortage groups include teachers, counselors, clinical psychologists, social workers, and registered nurses. Twelve thousand vacancies for social workers were reported in 1960, and the estimates are that the demand will continue to exceed the supply. The Public Health Service estimates that 850,000 professional nurses will be needed by 1970, an increase of 70 percent. The current shortage of qualified counseling personnel in all States is expected to continue, at least for several years.

For the efficient use of the time of such professional workers, there will be continued demand for people in supporting activities such as those of orderlies, hospital attendants, psychiatric aids and practical nurses.

In many places where the need for this support has been critical, there has been dedicated work by church groups, women's clubs and other service organizations. But many of those in this work are overburdened. Many of the people who have been left behind in the advancing well-being of the Nation have not yet been shown the path by which they can be helped and can help themselves. A new approach will encourage those now serving, and call forth many more to serve.

A National Service Corps would stand as both a symbol and an embodiment of the role of volunteer service in meeting the needs of American society. We are a nation of volunteers by instinct and inheritance; the Peace Corps has demonstrated the capacity of the American people to make a contribution in the abstract area of foreign policy by working in the specifics of helping other people.

Part of the achievement of a National Service Corps will be in the direct service its volunteers can render to people in great need. Whether it is in teaching the mentally retarded, or in assisting the uneducated to get the first step toward useful work-basic literacy-there will be direct gains for people in deep need who would not otherwise be helped.

In the course of performing this work, the National Service Corps will be spotlighting human needs. Once public attention is focused on the extent to which deprivation exists, and its location, I am confident that people will show the compassion to participate-by supporting expanded community services, both voluntary and in work that cannot be done by volunteers or needs a professionally trained nucleus to be effective.

The volunteer work of the National Service Corps will stimulate volunteer work on the part of others, and this will be a major goal of the Corps. In fact, there must be a good prospect that a community will produce counterpart volunteers or other resources to work with corpsmen and take over the work after a reasonable period before the Corps will undertake a project. Only in this way can the efforts of a few be multiplied.

The development in a community of a project on which the National Service Corps is asked to help will serve to fill in the outlines of specific problems. It will also indicate the presence and the active interest of community people con

cerned with the problems. The process of reviewing a project will pinpoint what the Corps can do about it. The corpsmen assigned will do the work that needs to be done. They will do it full time, day in and day out. What they do, working with existing agencies or groups, will set the pattern that others, living in the community or drawn to its need, can follow, improve, and above all enlarge upon. The pattern, and the continuity of effort by the corpsmen, will guide and foster coordinated effort of the volunteers already in the community and the new volunteers who come forward.

Project models already sent to the study group by community organizations that feel the need for corpsmen state specifically that the intended work of the corpsmen will not duplicate any work now being done by service groups or other agencies, provide for phasing out corpsmen when the projects are well under way and added community volunteers have been drawn in to help, and indicate the timing and method of the phasing-out process. Similar assurances will be required for all projects assisted by the Corps.

The Corps will aid in attracting more people into the social service professions. The community volunteers who assist corpsmen will be exposed to the needs of people and will be able to try out and develop their own interest in pursuing such work on a professional level. Furthermore, a significant proportion of the corpsmen themselves may find that their experience in the Corps leads them to seek careers in occupations involving special skills. Other young people whom they meet may be similarly motivated.

I see the establishment of the National Service Corps as a recognition and reaffirmation of the central principle that in a vast, complex society there is a great deal which must be done on an individualized, person-to-person basis in helping the human being who is disadvantaged to regain his balance amid the forces which mean progress for the society as a whole. The Corps can be our conscience and our best self.

(A brief recess was taken.)

Senator WILLIAMS. I described our first witness as the Cabinet quarterback. That was Secretary Willard Wirtz. He now hands over the ball to the fullback to come through the line, Secretary Stewart L. Udall.

We are very honored to have you with us, Mr. Secretary. We are glad to have you back on Capitol Hill.

STATEMENT OF HON. STEWART L. UDALL, SECRETARY OF THE INTERIOR

Secretary UDALL. Thank you, Mr. Chairman.

I should like to file my statement with the subcommittee, if I may, and to summarize its highlights.

Senator WILLIAMS. Fine, we will accept that and include it in the record in full. We welcome your other remarks.

Secretary UDALL. I support the idea of a National Service Corps with considerable enthusiasm really because of the inherent merits of the idea, the breadth of the idea. It is applicable to so many of the human problems, human shortcomings, social shortcomings in this country. I want to stress that this morning.

I am sure the subcommittee will hear from other witnesses detailed testimony on matters that concern our urban areas particularly.

My interest in the legislation relates in the main to the responsibilities of my own Department and I want to discuss them with the subcommittee. My own Department has responsibility in two major areas, not only for health and education and welfare programs, but for the total picture with regard to certain of our American citizens. I refer, particularly, of course, to our Indian people and the Indian programs and to the people in the territories of the United States,

and more specifically also, in addition to the 80,000 people in the Trust Territories of the Pacific which the Department of the Interior administers on behalf of the U.S. Government under trustee arrangement with the United Nations.

It does seem to me, because of the problems that we have in these areas, that here is a special argument and a special case for the National Service Corps legislation. We are making some very significant headway, in my opinion, with regard to our Indian people. I think we are going to be able to say in the next few months, the next year or so, for the first time in the history of this country that every child of school age, every Indian child, and these people are our first citizens, is in school and has classrooms in this country. This is remedying a situation which has gone unremedied for too long.

The truth of the matter is that there is no needier area of our country in terms of the need for help in social organization, the need for help in tackling major problems of people who have been neglected. Our Indian people represent, it seems to me, a very special opportunity for a program of this kind. They have the problem, with as much help as we can give them, of lifting themselves by their bootstraps.

Nevertheless the unemployment that reigns, generally speaking, as far as our people are concerned, is somewhere in the neighborhood of 40 to 45 percent. This, of course, is a rather staggering statistic when you consider that we are alarmed nationally with an unemployment rate of 5 to 6 percent. Therefore, as far as our Indian people are concerned and our Indian programs (I speak with familiarity with many of our Indian peoples, with the particular problems that they have), it seems to me that a National Service Corps would be particularly useful here, would be particularly creative here, in helping these people organize to help themselves.

We do have many good Federal programs, many fine Federal public servants working with our Indian people. Our education programs are, I think, finally beginning to come into shape so that we can point with pride to them. The health programs which were a disgrace as recently as 10 years ago I think now are approaching the standards of health care that we have elsewhere in this country.

But we still have with many of our Indian people, particularly the older people, a high degree of illiteracy. We have people who are not able to compete and get into the mainstream of American life because they have been denied opportunities that the rest of us have had.

Therefore, the type of program which they envision in the National Service Corps would be particularly appropriate so far as our Indian people are concerned.

Let me discuss for a moment, Mr. Chairman, also, our territories where there are special problems. I would say that today in our three territories, Guam, Samoa, Virgin Islands, we are making significant progress in all of them, particularly in the Virgin Islands which has seen quite an economic boom within the last few years. They are opening this fall a new college in the Virgin Islands, making a great deal of economic progress. When I was down there in February, a Peace Corps group was training in the Virgin Islands and building a school.

The people of Guam have had special problems; they have had two typhoons, one in the last 6 months, and their problem in regard to rebuilding that island and reorganizing is very serious.

The people of Samoa in the South Pacific represent a special problem, and we have not done a creditable job in the past, în my opinion, with regard to providing education and welfare services of the type that American citizens are entitled to. Here again, although we have some real programs moving forward for the first time down there, there is an opportunity for a National Service Corps. program that could serve many of the same functions in these areas that the Peace Corps is serving abroad.

The trust islands of the Pacific are a special responsibility, a special problem. We have over 80,000 people on a group of islands that are isolated. In terms of area, they are spread out over an area larger than the United States itself. These are people, many of them, who had only a few years ago a most primitive background. They have many different dialects and languages. Providing them with proper education and training for economic opportunities is very important and a very serious problem. In fact, I can report with considerable satisfaction that on the recommendation of the President in the supplemental, the first supplemental appropriation bill, which the Senate acted on only a few days ago, the budget for the trust territory island was doubled, so that we can do a much better job out there of providing some of the services that we have not been providing in the past.

So, I would simply like to sum up, Mr. Chairman, by saying that I see this program as an opportunity to do for our own people who have the greatest need what we are doing abroad and doing so brilliantly and creatively with the Peace Corps organization. That is, helping people to help themselves to take care of their social needs by going the voluntary route, by helping people to help themselves.

I think one of the finest things about the conception of the Peace Corps, that the President has submitted, is that we are selectively trying to provide wise people and creative people who can help in the crystalizing process so that through the voluntary method, which has been so successful in dealing with many of our social problems, these people can provide a special stimulus and give special direction to those who are already working in the field.

Therefore, I strongly recommend the program and I am delighted to testify on behalf of it this morning.

Thank you.

Senator WILLIAMS. Thank you very much, Mr. Secretary.

The President's Study Group has prepared an information booklet on the proposed National Service Corps and the program.1 It is an excellent document in my judgment. I would like to consider, with some of the other members of the subcommittee, the wisdom of putting this in our record at some point. It graphically describes the wretchedness of life on Indian reservations. It describes reservations which people from the Study Group visited. Scores are still living in canvas tents, and families of five, six, and seven are living in oneroom cabins. There is lack of attention to their medical needs, housing is very poor, and nursery schools are nonexistent. At another

The booklet referred to will be found in the appendix on p. 349.