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YOUTH UNEMPLOYMENT, ~97~
1.:
HEARING
BEFORE THE
COMMITTEE ON HUMAN RESOURCES
UNITED STATES SENATE
NINETY-FIFTH CONGRESS
SECOND SESSION
ON
EXAMINATION OF THE PROBLEMS FACING YOUTHS IN THE
3DB MARKET
JULY 31, 1978
PERTH AMBOY, N.J.
Printed for the use of the Committee on Human Resources
36-289 0
U.S. GOVERNMENT PRINTING OFFICE
WASHINGTON: 1978 ~TT ,~ ~
U~c ~
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COMMITTEE ON HUMAN RESOURCES
HARRISON A. WILLIAMS, Jn., New Jersey, Chairman
JENNINGS RANDOLPH, West Virginia JACOB K. JAVITS, New York
CLAIBORNE FELL, Rhode Island RICHARD S. SCHWEIKER, Pennsylvania
EDWARD M. KENNEDY, Massachusetts ROBERT T. STAFFORD, Vermont
GAYLORD NELSON, Wisconsin ORRIN G. HATCH, Utah
THOMAS F. EAGLETON, Missouri JOHN H. CHAFER, Rhode Island
ALAN CRANSTON, California S. I. HAYAKAWA, California
WILLIAM D. HATHAWAY, Maine
DONALD W. RIEGLE, JR., Michigan
STEPHEN J. PARADISE, Generai Counsel and staff Director
MARJORIE M. WHITTAKER, Chief Clerk
Don A. ZIMMERMAN, Minority Counsel
GREGORY Fusco, Minority Staff Director
(II)
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CONTENTS
CHRONOLOGICAL LIST OF WITNESSES
JuLx 31, 1978
PERTH AMBOY, N.J.
Molyneux, Thomas J., director, Middlesex County Board of Chosen Free- Page
holders 3
Epps, C. Roy, president, Urban League of Greater New Brunswick, accom-
panied by Carol Grant, executive director, Middlesex County Economic
Opportunity `Corp.; Geraldine Harvey, executive director, Central New
Jersey Opportunities Industrialization Centers; Israel Gonzalez, director,
Puerto Rican Office of Human Development; and Abraham Espada,
chairman, Puerto Rican Association for Human Development, a panel___ 9
Otlowski, Hon. George, mayor, Perth Amboy, N.J 62
Boyle, Charles A., chairman, Middlesex County Career Education Coordi-
nating Council, superintendent of schools, Edison, N.J., accompanied by
David H. Tyrrell, dean of the Division of Engineering Technology,
Middlesex County College, a panel 65
Fox, Gil, CETA Summer Program, Old Bridge, N.J., accompanied by
Cathy Jasmin, CETA trainee, New Brunswick; George Oruz, YCCIP
project, New Brunswick; Deborah Oglesby, CETA trainee, New Bruns-
wick; Charlene Sims, member, youth advisory council; and Zoromae
Glenn, CETA trainee, Somerville, a panel 88
STATEMENTS
Boyle, Charles A., chairman, Middlesex `County Career Education Coordi-
nating Council, superintendent of schools, Edison, N.J., accompanied by
David H. Tyrrell, dean of the Division of Engineering Technology,
Middlesex County College, a panel 65
Prepared statement 68
Cassidy, John J., mayor, Woodbridge, N.J., prepared statement 97
Central New Jersey Opportunities Industrialization Centers, Geraldine
Harvey, executive director, prepared statement 26
Epps, C. Roy, president, Urban League of Greater New Brunswick, accom-
panied by Carol Grant, executive director, Middlesex County Economic
Opportunity Corp.; Geraldine Harvey, executive director, Central New
Jersey Opportunities Industrialization Centers; Israel Gonzalez, direc-
tor, Puerto Rican Office of Human Development; and Abraham Espada,
chairman, Puerto Rican Association for Human Development, a panel__ 9
Fox, Gil, CETA Summer Program, Old Bridge, N.J., accompanied by Cathy
Jasmin, CETA trainee, New Brunswick; George Cruz, YCCIP project,
New Brunswick; Deborah Oglesby, CETA trainee, New Brunswick;
Charlene Sims, member, Youth Advisory Council; and Zoromae Glenn,
CETA trainee, Somerville, a panel 88
Middlesex County College, Edison, N.J., David H. Tyrrell, dean, division of
engineering technologies, prepared statement 76
Middlesex County Coordinating Council for Career Education, New Bruns-
wick, N.J., Charles A. Boyle, chairman, prepared statement 68
Middlesex County Economic Opportunities Corp., Carol Grant, executive
director, prepared statement 15
Molyneux, Thomas J., director, Middlesex County Board of Chosen Free-
holders 3
Otlowski, Hon. George, mayor, Perth Amboy, N.J 62
(III)
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Iv
Perth Amboy Board of Education, Robert S. Estok, job placement coordi-
nator, CETA youth programs, Perth Amboy Public Schools, Perth Ainboy, Page
N.J., prepared statement 103
Puerto Rican Association for Human Development, Abraham Espada,
chairman, prepared statement 32
ADDITIONAL INFORMATION
Articles, publications, etc.:
"Exemplary Youth Employment Programs," by Senator Harrison A.
Williams, Jr., from the Congressional Record, August 8, 1978 106
"Hispanics in New Jersey: Prime Target for CETA," by the Puerto
Rican Congress of New Jersey 41
Communications to:
Williams, Hon. Harrison A., Jr., a 1IJ.S. Senator from the State of New
Jersey, from Zoromae Glenn, CETA trainee, Central New Jersey
Opportunities Industrialization Center, New Brunswick, N.J., July
28, 1978 99
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YOUTH UNEMPLOYMENT, 1978
MONDAY, JULY 31, 1978
TJ.S. SENATE,
CoMMIrrei~ ON HUMAN RESOURCES,
Perth Antho~, N.J.
The committee met, pursuant to notice, at 9 :30 a.m., in the city
council chamber, city hail, Perth Amboy, N.J., Senator Harrison
A. Williams, Jr. (chairman), presiding.
Present: Senator Williams.
OPENING STATEMENT OF SENATOR WILLIAMS
The CHAIRMAN. We have brought our Senate committee to Perth
Amboy for many reasons. I'd like to read part of a statement. Then
we have Tom Molyneux ready to open our hearing.
The committee meets in Perth Amboy today to explore, at the local
level, one of the most persistent, intractibie barriers to full employ-
ment and sound economic and social growth as a nation.
Youth unemployment, joblessness among the young people of
the Nation, has presented us with serious social arid economic
consequences.
But more important, in my view, are the personal consequences for
young Americans-in terms of opportunities lost, human potential
wasted, and the prospect of living in deprivation and discouragement
for all of their years.
The scope of youth unemployment is a continuing national scandal.
Despite improvement in recent months in overall youth unemploy-
ment, joblessness among teenagers was 14.2 percent in June-nearly
21/2 times the rate of the labor force as a whole.
Among minority teenagers, unemployment in June was a tragic
37.1 percent, and it ranged up to more than 50 percent among minority
young women and residents of both sexes in poverty neighborhoods.
The progress that has been made over the past year is largely at-
tributable to new and expanded Federal programs.
We have mounted the broadest and most significant national offen-
sive against youth unemployment in 45 years.
New programs were enacted last year in the Youth Employment and
Demonstration Projects Act, and youth services under the Comprehen-
sive Employment and Training Act were greatly expanded.
As a result, more than two and one-third million young people have
received employment and training opportunities under Federal pro-
grams in the first 6 months of this year. This figure is more than four
times the number served under Federal programs that were operating
before CETA was enacted in 1974.
(1)
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Our focus today will be mainly upon the newly authorized youth
employment and training programs that were enacted last year and
funded by Congress with an initial appropriation of $1 bilhon.
These programs have been through the initial start-up phases, but
implementation is not complete. They are expected to achieve only 73
percent of their full operational potential by the end of the current
fiscal year on September 30, 1978.
Authorization for funding the new programs, as well as the entire
CETA program, expires this year. Legislation to extend the programs
will come before the Senate during August, and these hearmgs will
provide the committee with the opportunity for a timely evaluation of-
their impact and value.
The committee's interest is in exploring the major policy questions
and the degree to which the CETA programs-including the new youth
programs under YEDPA-are operating at the local level to provide
the answers.
Effective programs require that we understand the experiences of
youth in the workplace and their expectations and aspirations for the
future.
We must insure that limited resources are appropriately targeted on
youth who are most in need and on areas where unemployment is most
severe.
We have to insure that educational programs, job-skill development,
and job placement agencies are fully coordinated so that acquisition of
basic and special skills can be converted to satisfying and productive
careers.
Today, we will explore the working relationship between the ecluca-
tional system and the Federal employment and training programs, as
well as: whether these. programs are funneling youth into careers with
the greatest future opportunities and potential; whether placement
goals place the incentives on moving youth through their training too
rapidly, before they reach optimum skill levels; a.nd what difficulties
might be expected in shifting the emphasis of the programs away from
simple work experience and toward more formal and structured
training.
The experience of the distinguished and able witnesses to be heard by
the committee will provide us a solid basis for exploring these and other
questions. I welcome them and thank them for their willingness to
assist the committee.
It's vital that we get the story from a community that is classically
important, because we have such a large percentage, and have had
such a large percentage, of unemployed young people.
So, New Jersey's experience will be very, very critical to the Senate's
consideration when we take up CETA and the other programs within
a very few days.
It is with the greatest pleasure that I now begin with the director of
the Middlesex County Board of Chosen Freeholders, Tom Molyneux.
Middlesex County is the key to the delivery of these programs in the
community through the prime sponsor organization that we have
created under the Comprehensive Employment and Training Act,
CETA.
So, Tom, I'm always glad to be with you, whether it's at picnics,
at rallies, or during the day in the hard work of making government
deliver to the people the services they need.
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3.
STATEMENT OP THOMAS 1. MOLYNEUX, DIRECTOR, MIDDLESEX
COUNTY BOARD OP CHOSEN PREEHOLDERS
Mr. MOLYNEtTX. Thank you very much, Senator.
On behalf of the board of freeholders of the County of Middlesex,
we welcome you and your staff into our fine county. And I know that
Mayor Otlowski later on will welcome you to this very, very fine,
progressive city of Perth Amboy.
During the past decade, interest has begun to stir as the
labor market experiences of younger persons have been elevated to
the level of a social problem. The name of this social problem is
unemployment.
Teenagers have always been more susceptible to unemployment than
adults. During the 1960's, however, the already-high teenage unem-
ployment rate began to rise relative to that of the other age groups.
This deterioration was particularly marked among blacks. The un-
employment rate for black teenagers, particularly girls, rose to an
almost unbelievably high level. Even in 1966 and 1967, when economic
slack had been largely eliminated and labor markets were quite tight,
teenage unemployment remained above the level of earlier prosperity
periods.
In 1967, persons aged 16 to 19 accounted for 8.5 percent of the labor
force; but for 28 percent of the unemployment.
In a society increasingly concerned with target unemployment rates
and with the trade-offs between unemployment and price level change,
it has become important to know why young workers account for such
a high proportion of total joblessness.
In a society increasingly concerned with eliminating poverty, it
has become important to know the impact of early labor market experi-
ence on current family income and on the development of adult skills
and work attitudes.
There are three questions of primary concern:
Why is unemployment so high among younger workers, even under
the best of circumstances ~
Why has it risen sôshiarpiy during the past decade ~
How efficiently does the labor market function in transforming
novices into productive and flexible adult labor ~
The first question is the most readily answered. The normally high
level of teenage unemployment is due primarily to the fact that so
many teenagers are labor market entrants or re-entrants, rather than
to their deficiency or instability as employees. Teenage job hunters
do not appear to experience greater difficulties in finding employment
than do adult job hunters.
TJnemployment. is higher among teenagers than among. adults be-
cause the proportion of job hunters is also higher. The adverse labor
market experience of any specific cohort of teenagers is not thus pre-
dictive of subsequent difficulty in adult life.
Rather, within a decade or less, the high unemployment rates of the
teenage years are replaced by exceedingly low-unemployment rates,
refledted through school departure, the acquisition of a full-time job,
and maturation.
To emphasize that frequent labor market entry or re-entry is the
major explanation for high teenage unemployment is not to rule out
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the possibility that low levels of motivation, insistence on unrealisti-
cally high wages, or the inadequacy of current labor market institu-
tions may also play a contributory role.
A number of different explanations have been advanced for the rise
in teenage unemployment.
Some have suggested that underlying: structural changes have per-
manently reduced the unemployability of younger workers: For in-
stance, that successive increases in the minimum wage and the expan-
sion of its coverage have resulted in a sizable number of teenagers
being unable to find jobs because their productivity does not warrant
payment of the legal minimum; or that advancing technology is re-
ducing employment opportOnities for workers with minimal education
or experience; or that traditional "entry jobs" are being eliminated
and the creation of new "entry activities" inhibited-as a result, less-
educated youths are being condemned to long sieges of unemployment.
Indications are that the teenage labor ma.rket is highly, though not
perfectly, flexible and is closely interrelated with the adult labor mar-
ket. Further, there is no evidence that the employability of teenagers
has been impaired by increased minimum wages or by technical
changes.
On the basis of all the available evidence, higher teeu age unemploy-
ment must be attributed to substantial increases in the supply of teen-
age labor, and to the very important changes in its quality.
Between 1953 and 1957, the population aged 16 to 19 increased by
700,000, or 8 percent; between 1957 and 1960, by 1.4 million, or 15 per-
cent; between 1960 and 1964, by 2 million, or 19 percent; and between
1964 and 1966, by 1.4 million, or 11 percent-with the increase slacken-
ing greatly in 1967.
In 1953, 16 to 19 year olds :accounted for 7.7 percent of the working
age population. By 1967, this percentage had risen to 10.5 percent.
These additional teenagers were all school attenders, available only for
part-time or part-year jobs.
Youths who in earlier periods would have entered the labor market
on a full-time basis in their midtëens, are now likely to enter and re-
enter several times during their school careers, each time running the
risk of exposure to unemployment.
Although the teenage population will continue to expand, its pea.k
rate of growth seemingly has passed. In 1967, persons aged 16 to 19
accounted for 10.5 percent of the noninstitutional population. In 1970,
they accounted for 10.6 percent; in 1975, for 10.7 percent; and in 1980,
projected for10.1 percent.
Between 1958 and 1967, there was a significant substitution of teen-
age for adult labor, as the teenage share of total employment rose from
5.7 to 7.6 percent. Such substitution will not necessarily be in the fu-
ture, if weare to maintain the current teenage unemployment and la-
bor force participation ratios.
It is only necessary that employment opportunities grow as rapidly
for teenagers as for adults. The creation of the Youth Employment
and Demonstration Projects Act must be considered a vehicle by
which youth can be afforded realistic experiences in the world of work,
as well as a better awareness of the linkage between education and
employment.
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Although job competition from the growing number of persons in
their early twenties or increased labor force participation by women
may cause problems, the stabilization of the teenage/adult popula-
tion ratio offers substantial hope for reduction in teenage unemploy-
ment.
The third major question deals with efficiency of the labor market
in transforming novices into productive and flexible adult labor.
One of the major criteria for evaluating the initial labor market
experiences of teenagers should be the impact of these questions on
subsequent adult performance.
The Youth Employment and Demonstration Projects Act of 1977
will give us the opportunity to evaluate Middlesex County youth
labor market experience~s.
Through the youth community conservation and improvement proj-
ects, $331,000 was allocated to the prime sponsors; and, in turn, was
contracted to community-based organizations.
The youth employment and training program allocation was $1.28
million. These moneys were also contracted out to local educational
agencies.
Unfortunately, too few dollars have been allocated to have any
significant impact on youth unemployment.
I'll give you some statistics now, Senator, and members of your
staff:
Middlesex County youth employment data: In the 16-to-19-year-old
age group, the labor force was 28,000; the employment was 21,300;
unemployment, 6,800; and that accounts for a total unemployment
rate for the age group of 16 to 19 of 24.2 percent.
In the 20-to-21-year-old bracket, the labor force is 17,100; the em-
ployment was 14,100; unemployment was 3,000; and the unemploy-
ment rate, 17.5 percent.
The source of this is the 1976 statewide estimate of youth employ-
ment. This was constracted using 197G national annual average data
found in employment earnings.
Ratios were established by finding the relationship of each age
group and racial characteristic to the total group of employed and
unemployed in the U.S. labor force. These ratios were then applied to
1976 Ne~v Jersey labor force estimates.
County youth unemployment was found by finding the share of
county employment and unemployment to New Jersey's total employ-
ment and unemployment during 1976. These ratios were then applied
to the State totals of unemployed youth 16 to 19 and 20 to 21.
The youth unemployment data for the five prime sponsor cities was
obtained by using the 1970 census share percentages of the cities' un-
employment and unemployment to their respective county's total.
Based on the above, if I, as the chief elected official of Middlesex
County, were to give each unemployed youth in Middlesex County
their "fair share" of the allocation-which I referred to before-they
would receive $164.50.
The rest of my discussion here, Senator, consists of statistics. I'll
just read the last one. A copy of my remarks are on file here.
In the youth participation levels in Middlesex County from Octo-
ber 1, 1977 to June 30, 1978: In title I we had 778; in title II-and
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these are the unemployed youths-in title II we had 190; in the
SPEDY program, which we think is very, very important-we're
going through that now-we had 2,339 as of July 21, 1978.
In title III, YCCIP's, 68; title III, YETP, 529; in title VI, 152;
and in title VI projects, 588.
Other statistics are in this presentation, Senator. Your staff has
them.
This would conclude my presentation, and if there are any questions
that I can't answer, we'll take them down and we'll get the answers
to you.
The CHAIRMAN. Thank you very much, Director Molyneux.
I have lots of questions, of course, but we have a limited amount
of time.
I wonder if the present programs respond to the needs of unem-
ployed young people-we can help understand the dimension of re-
sponse by the number of young people who want to be in one of the
programs.
Mr. MOLYNEUX. Exactly.
The CHAIRMAN. And we don't have resources to bring them into
the program.
Is there any statistic on that?
Mr. MOLYNEUX. I don't have them. I would say definitely, yes.
In the summer program, I think we were cut back somewhat from
last year, and it was 2,339 I think I said, in the SPEDY program.
The CHAIRMAN. That's the summer employment program for young
people?
Mr. MOLYNEUX. From low-income families.
I would think that, as a total-as of July 21, 1978, there were 2,339-
and I would think that if we had the resources or the money, we could
have easily doubled that.
They are youngsters from the disadvantaged families, and if there
weren't programs such as this it would be literally impossible to find
a job, because of two things: It gives them some money, either to help
themselves, to buy clothes, to buy shoes-and also is some help to their
family.
But, more important than that, perhaps more important than that,
it keeps them occupied. And if you keep a youngster occupied for the
entire summer, there's less of a chance of a problem of going with bad
company. And it's good, all-around, keeping the youngster occupied.
In fact, we have many calls from families-and not necessarily dis-
advantaged families-to try to find their youngsters a summer job to
keep them occupied; and they weren't interested in the salary. They
said "put them on in the parks, put them on here and put them on
there. We're not interested in the salary. WTe're interested in keeping
our kids occupied for the summer until he goes back to school, until he
goes back to college."
The CHAIRMAN. Now those, the latter you described, are not quali-
fled to be participants in the program.
Mr. MOLYNEUX. Oh, no. Oh, no, exactly right, exactly.
This SPEDY program, as you know, takes youngsters I guess from
14 upto 17 and 18 years old.
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7
The CHAIRMAN. Now, the county is the prime sponsor. What is your
organizational distribution for sharing that responsibility? You've got
a county of many municipalities, a large population. What do you do,
choose cities to be your agents, or-
Mr. MOLYNEUX. There are two which run their own programs, al-
though the town sponsor is definitely responsible for their actions.
The township of Woodbridge runs their own program; and I believe
that they get approximately this year about $4 million.
Edison runs their own program, although the prime sponsor, the
chief executive officer, is definitely responsible for them.
The other towns get allocations distributed down through the
county CETA office.
The CHAIRMAN. Yes.
Mr. MOLYNEUX. And there are a lot of rule's and regulations, as you
know, Senator, depending on the unemployment rate in the town, and
so on; that would be a big factor on how much or how many people
that particular town gets.
It's all done through our CETA staff.
The CHAIRMAN. Yes.
Mr. MOLYNEUX. In my opinion, we have an Executive Director who
is doing a real marvelous job for the county of Middlesex, with a staff
equally as competent as he is.
And I've said many times I think Mr. Reagin Brown has, if not the
toughest, one of the toughest jobs in the county, because you're always
under the gun with the DOL. They want reports in as of yesterday,
and at times they work continually around the clock to get these
reports to DOL.
I am satisfied with the CETA program in Middlesex County. I think
we get approximately $35 million this coming year, and I think there's
going to be a rally, some sort of rally, in Washington on Wednesday,
I believe.
I got a telegram, a mailgram, from Mr. Bernard Hillenbrand, who
is the Executive Director of National Association of'Counties and I
think this is coming up before the Senate on Wednesday or Thursday
of this week.
The CHAIRMAN. In the House, I believe.
Mr. MOLYNEUX. In the House?
The CHAIRMAN. Yes.
These rallies are helpful to dramatize `any matter before us, and we
like to see them there.
Mr. MOLYNEUX. Yes.
The CHAIRMAN. In recent years, the emphasis of CETA has been
primarily on jobs. In the legislation that's being considered th'is year,
the training aspect is getting a greater degree of attention, and that
will probably mean some administrative adjustment.
Have you thought through, and has your Director though't through,
a new approach with more emphasis on training?
Mr. MOLYNEUX. Yes. We in the past several years tried to put as
much emphasis on training as possible. We think that's very inipor-
taut-on-the-job training and training for jobs.
CETA came into being, I think, at a very, very opportune time
throughout this country, when the unemployment rate was so high-
and it was needed, it was definitely needed.
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Then when you get to job training, or on-the-job training, and
someone goes through the 6 or 8 or 12 weeks of training for a particu-
lar job, in the past couple of years-because of the economy and every-
body being so slow-it was rather difficult to find them a job on the
outside.
I think it's picking up now. The economy's pickmg up. I think job
training is very, very important.
The CHAIRMAN. Well, you know, Middlesex County abounds in eco-
nomic growth, and we always know that you're still a target, a very
good target, for increasing economic activity.
Mr. MOLYNEUX. Right.
The CHAIRMAN. I wonder if the training programs, looking forward
to job opportunities, cannot be coordinated with economic develop-
ment programs; that's where the jobs will be, close to home.
Mr. MOLYNEUX. This is right.
The CHAIRMAN. Is this in the thinking?
Mr. MOLYNEUX. Yes; it is.
We on the board of freeholders have been expandmg our office; it
used to be the office of industrial commissioner; and now it's the office
of industrial and economic development. It's a very, very active office.
And we've said many times that we're going out~-I think our efforts
are going to show very shortly-to attracting-not only attracting
new business to come into the county and industry to come into the
county-but also encouraging the industry that is here to expand and
stay.
The CHAIRMAN. The youth employment and training programs
under the new Youth Act include a provision that 22 percent of the
prime sponsor funds be earmarked for expenditure only under an
agreement with local education agencies; that's the local elementary,
secondary school.
Mr. MOLYNEUX. The board of education, yes.
The CHAIRMAN. What kinds of services and other activities are
youth being afforded under these agreements?
Mr. MOLYNEUX. I don't know if it's training with the various boards
of education-I think we have some members of the board of education
here.
The CHAIRMAN. Yes.
Mr. MOLYNEUX. We have entered into contracts with our Middlesex
County College for training. And when we entered into these contracts
for training, as part of the contract the people and the organizations
that we entered into the contract with would guarantee to find 80, 85
percent of positions for the youngsters that they train.
The CHAIRMAN. We do have a panel of educators that are in the
program.
Mr. MOLYNEUx. Yes; right.
The CHAIRMAN. We'll be able to get that.
I know you're familiar with the President's dramatization of an
idea, bringing on a new program where private sectOr initiatives and
private business are more broadly woven into the effort to meet chronic
unemployment.
Mr. MOLYNEUX. I think that's very important.
The CHAIRMAN. Well, that's what I wondered. Would you welcome
an increased emphasis here, too?
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Mr. MOLYNEUX. I personally would. I think that's very important.
The CHAIRMAN. And what is the generalized-if you could general-
ize-private sector attitude toward and reception of these programs
directed at the chronically unemployed?
Mr. MOLYNEUX. In the private sector we do have some programs in
CETA with the private sector, and the salaries of the individuals are
subsidized somewhat by CETA money.
And out in industry I think, in working in the plant, working on the
lathe, working in car repair shops, working on automotive problems,
and so on-I think these are highly skilled trades, and after the train-
ing program is over, that particular company would in most cases em-
ploy that individual, or that individual would be able to find employ-
ment in that particular trade a heck of a lot easier than if he didn't
go through that training.
I think tying in and interweaving with the private sector is so very
important, and I'm pleased to hear that there's more emphasis on
that.
The CHAIRMAN. Excellent. Thank you very much.
Mr. MOLYNEUX. Thank you very much, sir.
The CHAIRMAN. Now, we have also seen the good advantage of
making community based organizations full partners in this effort.
Therefore, we're pleased to have a panel from this area of life, the
community based organizations: Mr. Roy Epps, the president of the
Urban League of Greater New Brunswick; Carol Grant, executive
director of Middlesex County Economic Opportunity Corp.; Geraldine
Harvey, executive director, Central New Jersey Opportunities Indus-
trialization Centers, the OIC's; and Israel Gonzalez, director of the
Puerto Rican Association for Human Development. All are present.
And Abraham Espada, chairman of PRAHD, is with Mr. Gonzalez.
Are all present? [No response.] None are present.
That's not quite fair to the chairman of this committee to give me
that kind of a heartbeat.
All right. Now, are you going to go first?
Mr. Erps. I'll go first.
The CHAIRMAN. Fine.
STATEMENT OF C. ROY EPPS, PRESIDENT, THE URBAN LEAGUE~ OP
GREATER NEW BRUNSWICK, ACCOMPANIED BY CAROL GRANT,
EXECUTIVE DIRECTOR, MIDDLESEX COUNTY ECONOMIC OPPOR-
TUNITY CORP.; GERALDINE~ HARVEY, EXECUTIVE DIRECTOR,
CENTRAL NEW EERSEY OPPORTUNITIES INDUSTRIALIZATION
CENTERS; ISRAEL GONZALEZ, DIRECTOR, PUERTO RICAN OPICE
OP HUMAN DEVELOPMENT; AND ABRAHAM ESPADA, CHAIR-
MAN, PUERTO RICAN ASSOCIATION FOR HUMAN DEVELOPMENT,
A PANEL
Mr. Errs. Mr. Chairman, members of the committee, my name is
C. Roy Epps, president of the Urban League of Greater New Bruns-
wick.
The Urban League is a nonprofit social planning organization con-
cerned with increasing opportunities for blacks and other minorities
in the areas of employment, housing, health, and other services.
PAGENO="0014"
10
I address you today as the chief executive of the Urban League, al-
though my perspective of the youth employment problem goes beyond
that position.
I currently serve also as president of the board of education for
the City of New Brunswick, vice chairman of New Brunswick tomor-
row, member of the New Brunswick Development Corp. Board of
Directors, and a member for the past 4 years of the Middlesex County
CETA Advisory Committee.
The Urban League of Greater New Brunswick is currently operat-
ing programs under the 1977 Youth Employment Act. We have been
actively involved with the Greater New Brunswick youth population
for the past 10 years.
During that time, we have conducted traditional summer youth
programs under the neighborhood youth corps program; and more
recently designated SPEDY program of the Middlesex County CETA.
Therefore, I speak to you with 10 years of experience with Federal
programs geared to the needs of the youth population.
Traditionally, the summer youth program allowed 8 weeks of em-
ployment for the disadvantaged youth population. During this 8-week
period, individuals are supposedly exposed to meaningful employment,
but because of the short-term nature of the program, many of the jobs
have been menial and/or make-work position, and has been viewed
as a source of money rather than a true employment experience.
With the enactment of the Youth Employment Act, we have seen a
sense of real commitment to the youth population of our Nation, which
has enabled a number of programs to be developed to allow for the
cultivation of potential within our youth population. This is `because
of the year-around feature of the program.
I am concerned with the fact that those making presentations today
do not include representatives from the private industrial and corn-
mercial sectors. It would seem that the ultimate objective of the pro-
gram is to move individuals from the publicly subsidized positions
into the private profit community.
Until real attempts are made to cultivate and encourage the private
sector involvement, we will continue to have spiraling inflation and
make-work positions.
It is critical that there be involvement of the total community con-
cerning this problem, because the youth employment crisis affects the
future of our Nation.
Community-based organizations must play an integral part in the
recruiting and service delivery systems. It is these organizations which
have direct contact with the youth population of our communities.
It is important to remember that the youth of our Nation have been
discouraged from participating in the work force by the lack of em-
ployment opportunities during the past decade. Therefore, it is impor-
tant that we make a real-and I repeat, real-attempt to involve them
in the main economic stream of our country.
The new CETA `legislation, title VII, can facilitate the involvement
of youth through the establishment of private industrial councils.
These councils should be viewed as an opportunity for encouraging the
priva.te sector's involvement in the youth employment dilemma. Hence,
it is essential that-
PAGENO="0015"
ii
(1) We have involvement of the private sector through incentives
to hire the youth of our community;
(2) That private nonprofit organizations that have been actively
involved in providing employment services under the titles I, II, and
VI programs be funded for similar services under title VII through
contractual agreements with prime sponsors and/or the private indus-
trial council; and
(3) That private nonprofit organizations be equitably represented
on the private industrial council.
The allowance of time for this testimony has curtailed the explora-
tion of other aspects of the CETA legislation and program, but the
Urban League of Greater New Brunswick is prepared to assist the
committee with additional information concerning the plight of youth
unemplo~yment of our Nation.
Thank you.
The CHAIRMAN. Thank you very much, Mr. Epps.
And this is a good suggestion-if you want to supplement your
testimony, or if anybody does, we would welcome any things you
think are important that you couldn't reach, again because of the
limitation of time.
And I'll tell you what the limitation is. The Senate is meeting
in Washington today, and major matters are before the Senate, and
there will be votes, and I have to be there. I have to be back later this
afternoon.
I would personally prefer to be here all day and hear everything
possible that people would like to inform us of, but because of the
necessity to be back for important votes, we had to limit it. That's
the limitation.
Mr. Epps. I recognize that.
The CHAIRMAN. Therefore, if anybody wants to supplement, you
could work it out withMartin Jensen, so it gets through. Some of the
mails I know aren't delivered as rapidly as some of the others, and
I would want to put you on that special line that would bring it right
through. Whether that will work or not, I don't know.
I got a card from my daughter from far away. She had an unusual
opportunity to visit in Europe this summer, and when she got back
I heard all about it, and it was good. After she got back and was here
for 3 weeks, then the mail started coming in. [Laughter.]
So that's an international problem. But even here at home, we have
a little problem.
Now, Carol Grant, executive director of Middlesex County Eco-
nomic Opportunity Corp.
Ms. GRANT. Thank you, Senator.
Mr. Chairman, members of the committee, I want to say that I am
extremely grateful for this opportunity to present testimony on the
issue ofyouth employment. .
I must commend the Senate Human Resources Committee for in-
volving a cross section of the community in exploring these issues. I
endorse the concept of public hearings to obtain public input on all
major legislation, and would like to encourage its expansion so that the
Congress may hear from its broader constituency directly and the
community itself, on behalf of which we all labor.
PAGENO="0016"
12
We were asked to address specific issues within the larger one of
youth unemployment, one of the first being: "What do youth expect
from work; and, really, to what do they aspire?"
We have found that youth in general wants what everyone else
wants. They express as much willingness to take job training if un-
able to make a living and to work, even if they were to have ~an ade-
quate income.
They have, moreover, the same high life aspirations, for example, to
be self-sufficient, successful, to have a good job with career advance-
ment, potential, to have a nice place to live, a good education, a decent
standard of living, and to compete with equality for a piece of the
pie-as do all members of society.
Unfortunately, low income and minority youth are at a disadvan-
tage as a result of being poor, and find that they are unable to compete
on an equal basis with nonpoor contemporaries for the "good things
in life.
In terms of Federal programs and their ability to address those
groups that need services the greatest, I believe they have only been
partially successful.
Taking a look at, for example, the minority unemployment rate, it
is double that of nonminorities. Some of the factors which might con-
tribute to that include all of the liabilities that poor people are sub-
jected to: Inadequate and unsafe housing, isolation, lack of transpor-
tation, lack of opportunity, lack of income. In addition, they suffer
from all of the problems inherent in racism and discriminatory
patterns.
I think any Federal program purporting to help solve any of these
problems must address causes and eliminate causes of those problems.
The Federal Government has a national responsibility to insure
that the concept of equal opportunity is in fact a reality.
In addition, MCEOC, the Middlesex County Economic Oppor-
tunities Corp., is a community action agency, and we've been around
for about 12 years.
We are current operators of three CETA youth programs under
title III:
A youth employment and training project; and
Two youth community conservation improvement projects.
As experienced CETA youth program operators, one of the things
that concerns us about the design of programs is that we appear to be
developing programs into which we must put the needs of the com-
munity; rather than designing programs which meet the needs of the
community.
I would propose that there be less Federal regulation of programs
and far more local flexibility to develop programs which meet local
needs.
America provides few jobs, let alone attractive ones, to those with
police records, few marketable skills, different color skins, or in any
way deviating from the accepted norm. Racism and discrimination in
the administration of the criminal justice system in many communities
virtually insures most low-income minority youth a police record at
the very least to carry with them into their adult life.
PAGENO="0017"
13
Federal programs must serve as an equalizer for these Third World
youth at a greater level of intensity than that used to address the
problems of nonminority disadvantaged youth, and other groups.
While this might be termed selective programing, it is necessary to
carry out the actual intent of the CETA Act.
What happens as a re~ult of Federal involvement in designing pro-
grams which are supposed to meet local needs is that as time goes on
the interference is increased through regulation, in an attempt to
make programs accountable. I'm not opposed to accountability.
I think that programs should be accountable. Taxpayers' dollars
ought to be spent wisely.
I heard Freeholder Director Molyneux indicate his pleasure at the
high performance achievement rate, in terms of 85 percent of, place-
ments-or when mandates are established at the Federal level for
achievement of specific performance ratings, they have a tendency to
encourage local prime sponsors, and in turn others, to play the numbers
game, or to engage in the practice of "creaming."
"Creaming" is the practice of placing those individuals into par-
ticipant slots who are more likely to be able to be placed. In other
words, participants who have the "shortest distance to travel," are
selected. Thus, assuring more successful placements. In all likelihood,
those participants are individuals who might have succeeded without
the help of Federal intervention.
Creaming has a tendency to subvert the original intent of the act
and shifts service to those segments of society who probably would
have succeeded even without any help at all.
Cost-effectiveness and administrative control appear to be overrid-
ing concerns,, because numbers are easier to determine than quality,
which is a more subjective matter. These concerns are usually given
more weight in terms of identifying the overall effectiveness of any
given program.
Federal regulation tends to reduce the flexibility of local programs
to respond to local needs. I favor decentralization and less Federal.
control if the Federal Government mandates the involvement of a
broad spectrum of the community, including community based orga-
nizations who traditionally. effectively serve disadvantaged target
populations.
To simply transfer control to a local policy, who may or may not
have been responsive to the needs of disadvantaged youth, would b~
perhaps a-dangerous thing to do.
Representation of such agencies as community action agencies, urban
leagues, OIC's, should be required of all CETA planning bodies.
Representation-Government, the Employment Service, and local
education associations-have not traditionally been designated suc-
cessful operators of programs for the poor.
Yet, Federal programing, to a much greater degree than ever before,
has encouraged set-aside provisions to insure that the funds are dis-
tributed to local government, to the Employment Service, and to local
education associations, without any real requirement for including
CBO's.
Somehow, there is an injustice in that. There is a role for everyone
working together in the scheme of things, and I think that is probably
the only way any of us can succeed. As long as we are forced to com-
PAGENO="0018"
14
pete and to fight one another for limited available resources, nothing
can result.
I would like to support the concept and the idea raised by Mr. Epps
that community-based organizations be given a seat on any private
industrial council, because the private sector certainly is where the real
jobs are.
To continue to use CETA funded public and private nonprofit em-
ployment placements, except for training or work experience purpose.s,
exclusively, to use only the on-the-job placement approach with private
industry and business, to not think of viable alternatives to the use
of the private sector, will be to perpetuate a. temporary, at best, make-
work situation which the CETA legislation specifically exhorts us not
to do. Therefore, with the private sector being the most useful vehicle
and the real vehicle for long-term employment for the disadvantaged,
CBO's of demonstrated effectiveness should be utilized to the fullest
extent in the area of their expertise. These areas of acumen might have
to be determined on a case-by-case basis but it is clear that their con-
tact with "those most in need" and their long experience working with
these groups makes it essential that they be involved in any effort at
serving these significant segments including as a. required part of the
PlC.
Coinmunity-base.d organizations ought to be given equal weight in
consideration for being recruited as operators of programs of any
kind along with local education associations with municipa.l govern-
ment. It is, in fact, this amalgamation of all entities-the local gov-
ermnent LEA's, the CETA prime sponsor, the private sector, and the
community-based organization-that can perhaps address the problem
of youth unemployment most effectively.
Thank you.
[The prepared statement of Ms. Grant follows:]
PAGENO="0019"
15
11IEiEift~X [UtiliTY ~[Uu1Uul1l[ ~URTUU1TI~ [URR
ffl[~U[ 290 GEORGE STREET
July 28,1978
Testimony prepared by the Middlesex County Economic Opportunities
Corporation of New Brunswick New Jersey for the U.S. Senate Human
Resources Committee on the issue of Youth Unemployment.
I am grateful for the opportunity to present testimony on the
issue of youth unemployment. I must commend the Human Resources
Committee for involving a cross-section of the community in
order to obtain public comment and input into legislation
designed to address the problem of youth unemployment. I would
like to endorse the public hearing approach as a viable mechanism
for obtaining public input and heartily endorse continuing use
of this approach but would like to encourage expansion so that
the Congress may in fact hear from its broader constituency directly
the community itself -on whose behalf we all labor.
We have been asked to address specific concerns within the
larger issue of youth unemployment and in the interest of time
I would like to begin without further delay.
We have found both in our discussions with youth and in our
readings of contemporary literature that poor people in general
~
identify work with self-
esteem as strongly as do the non-poor. They express as much
willingness to take job training if unable to make a living and
to work even if they were to have an adequate income. They have,
moreover the same high life aspirations--to be self-sufficient,
successful,to have a good job with career advancement potential,
to have a nice place to live,a good education a decent standard
of living and to compete with equality for a piece of the pie
as do all members of society. Unfortunately, they are at a
distinct disadvantaged as a result of being poor and find that
they are unable to compete on an equal basis with their non-
poor contemporaties for those kinds of things we identify as the
"good things" in life. It is not that poor youth do not want to
work. They often want it desperately. When they are repeatedly
rebuffed, they bbcome resigned to "never making it" and decide
as we all would placed in similar circumstances that it is no
use trying for the impossible. Equal opportunity becomes a myth
rather than a reality in this alleged land of "equal opportunity",
without effective Federal : intervention.
PAGENO="0020"
16
It is not difficult to understand why minority unemployment
is double that for non-minorities. Many of the reasons for
this situation are connected with the general disadvantages
facing the poor as a group, with the additional burden of
racism and discrimination. Some of these reasons include
the negative attitudes and malaise caused by such things
as inadequate or unsafe housing,ghettoization F~ isolation,
lack of income or opportunity, lack of successful role models
since poverty and discrimination have affected all generations
before and will continue to do so unless something is done and
done now, poor nutrition and bad health, inadequate,inaccessible
or unaffordable health care,deficient or uncaring educational
systems,and inequitable criminal lustice systems which virtually
ensure because of racism and ignorance that poor minority youth
carry with them into adulthood police records(though in the
same circumstances non-minorities often are treated more leniently).
America has few jobs-let alone-attractive ones~for person~ with
police records,few marketable skills,poor educations, or different
color skins. The"last hired first fired syndrone"is still operative
in all too many places even now eith the myriad efforts at
implementing Affirmative Action programs.
It is also not particularly difficult to understand that lack
of real efficacy of Federal programs with few exceptions to
alleviate either the problens faced by poor youth or poor ninority
youth. blhat is at the crux of the matter is the commitment of
the Federal government toward development of policy aimed at
eliminating the causes of problems. Instead of this, policy
appears to be aimed at treating the symptoms. It has been said
by those more knowledgeable than I,that the only preventative
program to be designed by the Federal Government was the EOA
of 1964 because even the language is geared to "eliminating
the causes of poverty" the remainder of the programs are suppressive
that is they address the conditions caused by the problems,coritainment,~1
therefore the problem continues to grow and to become worse.
It has also been said that if in fact the Federal Government
put all of its money into eliminating causative factors, there
would be no problem. Then, of course, one must consider that many
of us including Community Action Agencies would be out of jobs
because there would be no other reason to exist. This is an
ideal situation which no doubt for many political reasons will
not unfortunately occur. any time soon.
As it relates to CETA~as n~~ Federal program, to offer jobs
without addressing stlbsidiary ii~edsc~requirenents ,day care for
participants who are heads of households,providing adequate levels
of remedial education,support services,skills training,health care,
and pre-vocational services to equalize the gap between the poor
of whatever ethnic persuasion, and non-poor, is like using a bandaid
to cure an amputation. It just will not work. Not now, not later.
PAGENO="0021"
17
-
Although charity is a noble calling in our United States,
putting dollars into programs for the disadvantaged has never
been a very popular thing to do--especially with the tax-
paying voting middle-American public. I can understand why --
the average American sees millions,nay billions of dollars
poured into Federal programming with little results. I remind
you of my argument regarding addressing causes. What,at any
rate, usually results is that the Federal government finds its
self in the awkward position of having to justify large federal
expenditures thru use of what is visible--usually numbers,
statistics etc.
Local level politicos face the same problem. They must justify
continued use of Federal tax dollars to support programs which
produce visible results. The problem has a rippling effect on
everyone. Meanwhile, efficiency ~ effectiveness of a particular
national approach may be negated because of the necessity of
having to appeal to the voter--we are well aware of who traditional
voters are and this group expresses itself quite well each
election time at the polls. The Federal Government has a
special national responsibility to ensure that the concept of
equal opportunity is a reality not a myth. This is especially
true of disadvantaged youth who not only have the usualliabilities
caused by the very character of poverty but who also have t~jeir
"youth" which might work against them. In designing programs
to serve the disadvantaged,including poor ~ minority youth,
you must take into account what the needs of the target group
are as defined not by those who traditionally have not served
them well if at all but by the poor themselves or by those who
represent(in the eyes of the poor) their interests well. This is
a lesson we learned in the l960's--how quickly we all forget.
The Federal Government must take the lead in agressively directing
the flow of federal dollars where and how needed despite the fact
that it night not be politically advantageous to fund programs
such as CETA at adequate enough levels to enable them to really
address In a meaningful way the multi-faceted and serious problems
at the heart of the situation. OEO was quickly disarmed and diffused
when it was evident the kinds of turmoil happens when causes are addressed.
Programs must be designed at a policy level to be flexible enough
to respond to often rapidly changing local needs, to be accountable
for the public funds, to be innovative and creative according to
the needs of the group you are to be serving if they are to be a
viable means of eliminating the problem. We must begin to deal with
program designs and ppproaches which effectively in~:crporate the
characteristics of the groups we are to work with. For example,
in dealing with youth one should take into account the value of
peer relationships and other attribptes which particularize the
behavior and attitudes of todays young people. We cannot and should
not address youth programming in the same manner as we do similar
kinds of pro~rams for adults. We must take account social,cultural
and ethnic characteristics and use these for our society's benefit.
PAGENO="0022"
18
CETA and other Federal programs have only partly been
successful in targeting services F, programs to those most
in need. The control over the decision-making processes
which is evidenced in Federal or Regional administrative
directives often precludes this particular requirement and
such control encourages or forces the practice of "creaming"
in order to comply with federally mandated performance guidelines.
In effect, the prime sponsors and in turn program operators are
forced to play the "numbers game". This factor alone prevents
reaching out to those most in need. If one has to show that
one has placed successfully or terminated positively 85% of
your participants, then you had better be certain that when
you perform initial enrollments you select those individuals
who have the capacity for moving ahead in terms of skills and
employability in the limited amount of tine alloted to the
project. Although this testimony addresses primarily youth
enrollment, the practice holds true for participants of any
age or category or title. It is in effect loading your program
to look successful. Although it sounds despicable, it is necessary
for continued or new funding. Creaming has a tendency to
subvert the original intent of the act and shifts the services
to those segments of the society who probably would have been
successful even without Federal intervention. Little consideration
can be given to the subjective accomplishments of youth programming
because these kinds of achievements are so hard to measure. Hard
facts like numbers are far more visible and easier to count.
Among youth there is so much diversity that it is likely that
there will be sufficient youngsters to be enrolled who will
make the grade without the equalizing effect of the program
in which they are enrolled.
The emphasis on cost effectiveness and control over the amount
to be spent on adminsitration of the project antha~ the over-
riding concerns rather than the quality of the program or idea
which is being implemented. lVhile we need to be able to measure
these things and while the public funds must be protected against
waste, they-should not prevent the carrying out of innovative
or creative programs. When enrollees who require more tine thafl
originally indicated to complete courses of training etc., flexibility
must be built into accomodate these needs. If programming
adequately addresses the proper areas, cost effectiveness and
other kinds of concerns might be taken care of automatically.
Less waste -and by waste I mean public.dollars spent on programs
that do not succeed in meeting the intent of the act-will mean
cost effectiveness.
Billions of Federal dollars in increasing amounts have not hereto
fore meant increased effectiveness in meeting stated objectives.
More doesn't mean better. Federal investment for programs should
be evaluated against the savings realized from dollars not haying
to be spent on public subsidies because a participant was trained
and supplied well enough to get a job paying decent wages in the
private sector. This is cost effectiveness in the real sense.
PAGENO="0023"
19
Federal regulation tends to reduce the flexibility of
local Prime sponsors and programs to respond to local
needs. I favor decentralization and less Federal control
only if sufficient mechanisms are built in for greater
community input and involvement. CBO'S must have an
increased role in the overall planning ~, decision making
processes.
While performance guidelines and the number game in
youth and other areas have contributed to CETA's lessened
to respond as effectively as may be possible to serving and
focusing resources and program efforts on the most disadvantaged
groups is the lack of Federal guarantees for the involvement of
participants in those sane planning F~ decision making processes
involving the planning for expenditure of Federal dollars.
Although the youth program has built into it an advisory
committee (Youth Advisory Committee), it is my belief that
youth participants themselves are underrepresented. In this
area, CBO's are usually represented adequately as are LEA's.
If we are talking about self-sufficiency and independence then
the youthful participants must have direct input into 1) analyzing
their groups needs 2) reviewing and evaluating program proposals
designed to meet those needs and 3) evaluating them as they are
operating. At least 1/3 of the membership on the Youth Advisory
Committee should be youth. It is preferable that a mechanism
be developed which would ensure that the most disadvantaged
young people and representatives of youth from abrobdly,based
spectrum of this segment of the population a seat on this
body. How effective progranming to serve the needs of a population
group can even be considered much less addressed adequately without
their direct input is beyond me.Statistics and numbers only tell
part of the story. Although plenty of these abound, it is in the
intrinsic nature of the beast that the answer must be found.Paper
can describe that so many Hispanics have dropped out of school
and are unemployed during a specific period of time. They cannot
tell you why that is so.. . .what factors contributed to such a
drop-out rate th- what must be done to raise the levels remaining
in school. This must come from those drop-outs themselves. This
is a lesson we learned in Community Action many years ago. I
think perhaps this holds true across the board and we may have
to apply the same concepts in the case of CETA F~ Youth.
It has been determined in many studies that less emphasis should
be placed on how to get a job and instead the stress must be
placed on training youth to get jobs . If you develop meaningful
programs which can provide all of those services required to
equalize our disadvantaged youth with those less disadvantaged
to make them equipt to compete on the open market for jobs, and
if you can build in reasonable periods of tine to accomplish these
things dependent upon the nature of the need not the limitations
of the funding period, then, perhaps placement in jobs would be-
easier to accomplish.
PAGENO="0024"
20
- -
Congress must begin to relax the constraints upon linkages
with the private sector to permit flexible approaches to
establishing such liaisons beyond the usual on-the~job
training approach. Many tines, private sector business is
willing to provide career ixposure arid experience to youth
but programs and prime sporsors are constrained from taking
advantage of such opporturd ties because on-the job training
(50% reimbursement to employers based upon their extraordinary
training costs) must be usod with the private sector. Many
private sector businesses do not want to be bothered with
the complications of OJT. The private sector and youth must
become acquainted and soon. As long as youth are prohibited
from being exposed to the "real work" situation, unemployment
may continue to be the norm not the exception that is desired
under the CETA act.
Greater emphasis on the development and/or creation of sma~l
business opportunities and econonic development kindsof projects
which would generate program income. Provision should be made
for the retention of this income to further program purposes
although I agree that it must be carefully regulated and accounted
for. If we are talking truly about iddependpnce for youth
then we must be about the business of teaching them the art of
it. There is an old saying that if you give a man a fish you
feed him for a day, if you teach him to fish, you feed him
for a lifetime. This maxim is most appropriate to this topic
today.
I would not like to impose a limited role optimum or not
for the Conununity based organization. The asset CBO~s may
have which is most important is their diversity and their
general flexibility. I would not like to constrain this by
specifying only a few roles they might play.
I think much would depend on their level of demonstrated
effectiveness ip operating programs. However, there are a
few qualifications of CBO's which might tend to indicate their
effectiveness as implementers of such activities as needs
assessments,recruitment, program operators of innovative,
demonstration and creative projects addressing the needs of
minority and poor youth. CBO's must be represented on all
key advisory committees of CETA, including the Private
Industrial Council. They should have key roles in operating
basic skills ~ remedial services programs including ESL
GED and pre-vocational type programs.
PAGENO="0025"
21
CBO's should be given equal status to LEA's and local governments
in the prime sponsors consideration for funding programs for
youth. LEA's and local governments have not traditionally been
successful in their dealings especially with disadvantaged youth.
I feel that this is changing. But to provide required set asides
for monies to go primarily to these entities shuts out CBO's and
I believe that again many of the most in need may go without
assistance not because of lack of interest or commitment on
the part of public entites but because of lack of knowledge about
where such potential participants may be located or because of
lack of knowledge regarding approaches for motivating the most
in need to participate at all. Coordination is a must between
and among all youth operators. Practical experience has shown
us in New Brunswick for example how many ways all organizations
and agencies can maximize federal dollars and share services and
resources. This is what the "comprehensive' language in the
CETA act t~rruly means.
For example, LEAS and local governments have equipment,space
and technical,professional expertise which might be made available
to CBO's while CBO's may have the knowledge about motivational
techniques, familiarity with neighborhoods and with families
which affectg recruitment,intake and other functions. Here again
I must reiterate the concern about administrative costs. School
systems and local government beat CBO's every time with low
administrative cost levels as compared with CBO's.( as low as
none for LEA's and as high as $ 3,500 for CBO's in terms of
per capita costs. Public entities can "eat many administrative
cost items while CBO's cannot. In any event this should not
be the overriding factor in weighing proposals for funding
unless the costs are extremely out of the realm of possibility.
In general CETA must become what the act directs--a comprehensive
manpower program which serves the most disadvantaged un-and under
employed to obtain jobs training and employment. Can we really
afford to fail again?
Respectfully submitted,
Carol A. Grant,
Executive Director
MCEOC
7/31/78
Perth. Agiboy.N,J,
PAGENO="0026"
22
The CHAIRMAN. Thank you very much, Ms. Grant.
It was an excellent statement. I hope that the cameras were set
up in time.
If you could divide your mind-I know you want to listen to the
other witnesses, Ms. Grant-but with the ot~her part of your mind if
you could describe to me from your organizationa.l base what would
be the elements of your idea of flexible opportunity-in other words,
what sort of a contract with the Department of tabor. would give
you what you feel is the flexibility that could direct progi~ams to meet
needs?
We have many programs under many titles, and they are each
tailored for specific purposes. It gets a little complicated, as a
bureaucratic business, No. 1.
And, No. 2, it complicates the competitive business of getting funds.
I can appreciate that.
We are working with substantial funds-but limited in terms of
matching the funds to the community needs that we serve.
Ms. GRANT. That's right.
The CHAIRMAN. So, if you could give us that before this panel is
through, ]ust in broad outline, it would be helpful.
Ms. GRANT. Yes.
The CHAIRMAN. Now, Geraldine Harvey, executive director of
Central New Jersey Opportunities Industrialization Centers.
Now, that's a long title. We affectionately reduce. that to something
we can all remember, the OIC's.
Ms. HARVEY. Good morning, Mr. Chairman.
My name is Ms. Geraldine Harvey. I'm executive director of the
Central New Jersey OIC. We are a local affiliate of the National OIC
Organization. We serve both Somerset and Middlesex Counties.
I'd like to again express, along with my other colleagues, my grati-
fication in terms of being able to speak to you about youth unemploy-
ment.
As you are very familiar with OIC's, and for the benefit of those who
are not equally as familiar-unlike my other colleagues, OIC is unique
in that its total organizational philosophy and goal is directed toward
employment and training of unemployed and underemployed disad-
vantaged individuals who are Americans. So, therefore, the ramifica-
tions of CETA are great.
As with Ms. Grant, I was asked to speak specifically with regard to
some of the pressing issues which impact upon unemployed youth-~---
such as their expectations and vocational aspirations.
We have programs that are serving youth in both Somerset and
Middlesex County under-not only the special youth title, the title I
programs, approximately 52 percent of all our enrollees are under the
age of 21-we have services that are considered both prevocational and
vocational: Prevocational, in the sense that we provide instruction
and counseling in the areas of worth and educational remediation, as
well as work skills, et cetera.
We do use the OIC model. We have found, basically, that most
unemployed youth have little expectations about work other than to
receive moneys for tasks performed. However, when they are provided
an opportunity to relate their feelings about work expectations through
PAGENO="0027"
23
prevocational services-such as career counseling and orientation to
the world of work-they are able to articulate other aspirations, such
as: It provides some kind of service in the neighborhood, their expecta-
tions in terms of treatment on the job by superiors.
They are able to, perhaps for the first time, think about what it is
they would like to do with their lives.
Over 90 percent of the youths 010 serve have little definitive voca-
tional choice. They rarely come into 010 with aspirations to seek
employment that offers job mobility. This concept has to be presented
to them as being both realistic and within their reach.
So we, therefore, feel that the emphasis on prevocational training
services-such as career information, remedial education, and instruc-
tion in proper work habits and attitudes-are necessary in order to
motivate that youth, in order that he can select an appropriate voca-
tional field and prepare himself in the area of skills training.
We find this to be both cost-effective and beneficial to that individual.
We also have ideas, or share ideas, in terms of just exactly what
factors contribute to the rate of minority unemployment, as op-
posed to the nonminority unemployment rate; and we, too, share
the concern that Federal programs, such as CETA, have not ad-
dressed themselves to the multifaceted problems of disadvantaged
minority youth.
CETA has not truly been successful in establishing linkages with
social service agencies, schools, community based organizations, and
parents of minority youth. There is little comprehensive planning by
Federal agencies, including CETA, to coordinate and maximize serv-
ices that will impact on the total problem of youth, which includes
not oniy his unemployment, but his family, his life environment, and
individual development or socialization processes aside.
Until significant efforts are made to involve all deliveries of human
services in the planning and the development of services to youth,
including provisions allowing youth themselves to undertake a greater
role to determine the kinds of training and services that will be
provided, we feel that we perhaps may fall short of reducing the
unemployment and social problems of the disadvantaged youth.
Now, has CETA been successful in targeting jobs and services to
those most in need?
Well, we concur with our colleagues, in the sense that we feel that
CETA has enjoyed limited success in targeting services and jobs to
those in need.
The statistical data reported regarding numbers of disadvantaged
or significant segments of population served are inflated, due to the
practIce of multiple counting of a single enrollee possessing several
characteristics of the priority groups to be served.
For instance, one young person who is a black female, head of
household, welfare recipient, may be counted statistically four or five
times. So, therefore, we don't really have a true picture in terms of
what is in fact, you know, success statistically.
Again, because we are aware that in our economy we all have to
bite the bullet and look at and examine programs in terms of cost-
effectiveness, we are concerned that perhaps the pendulum is slanted
a little more than necessary, because this has become one of the over-
PAGENO="0028"
24
riding motives in the development of training and employment de-
livery systems, which are fragmented and do not address the needs
of the truly disadvantaged.
Many prime sponsors have also become program operators and are
eliminating or reducing creative and successful employment and train-
ing designs historically performed by CBO's, charging these functions
are duplications of services they now provide.
This charge of duplication of services in many instances is un-
warranted and can be attributed to many prime sponsors themselves
who have estaiblished unwieldy bureaucratic structures providing the
types of services and serving the population duplicative of the Employ-
ment Service.
The prime sponsor's preoccupation with being cost effective has led,
as Ms. Grant quoted, to creaming program participants in order to
meet certain placement quotas, providin~ skills training in the short-
est period of time, and providing insufficient funding in some areas of
day care, transportation, and prevocational training.
These practices, along with little or no aggressive outreach and
recruitment tailored to attract those in greatest need, seem to be con-
trary to the manpower delivery system required to meet the congres-
sional intent of CETA.
Now, we feel that there is a particular and optimum role that the
community based organizations can play in a comprehensive employ-
ment and training system that does include, and rightly should in-
clude, local government, local schools, and local private sector efforts.
We feel that the community based organizations with expertise in
providing employment and training services should be recognized as
equal partners with local government, local schools, and local private
sector efforts, instead of an adversary or competitive role many CBO's
are currently experiencing.
The widely practiced. policy of bidding for CETA dollars has
placed many `OBO's at a distinct disadvantage. CBO's with demon-
strated effectiveness are competing with tax-supported agencies and
institutions and the private sector who can consistently underbid them
in terms of program cost because they possess equipment, facilities and
financial resources not available to CB'O's. And this is certainly true
within the State of New Jersey.
This is a problem, Seiiathr, because of New Jersey's administrative
code; many of the fundings through the State vehicle that has been
funded through HEW and State adult vocational education we are
precluded from receiving, because of the definition, a "Catch .22"
definition in New Jersey law, which says that a private school-which
we consider ourselves--must charge tuition; and since OIC's do not
charge tuition, therefore we're precluded from getting these kinds of
fundings.
And, at the same time, this puts us in a position of reliance on CETA,
local CETA, funds for program expansion and operation. So, you see
we have a problem.
We `also are concerrLed that in terms of understanding-and we,
particularly, like 010's `are cost effective and recognize the need to
get the most from what dollars you have.
However, there is a strong possibility that low-budgeted programs.
may prove more costly over an extended period of time because the
PAGENO="0029"
25
employment and training needs of hardcore disadvantaged continue
to be unmet.
CBO's, like 010's, who have many years of experience in providing
employment and training to the disadvantaged, should be regarded
as a link between the target population and the schools and the private
industry and local government.
Training programs for in-school use should be developed and im-
plemented in concert with OBO's who can reinforce in the community
positive work habits and skills presented to the school; thereby impact-
ing on the potential dropout rate.
Young dropouts can receive a second chance to develop meaningful
educational and prevocational skills training through the flexible de-
livery system instituted by a CBO. CBO's, such as 010, have provided
and will continue to provide to the private sector a pool of well-
motivated, qualified individuals who can fulfill their affirmative action
needs and their labor needs.
Therefore, we feel that these are only a few of the benefits realized
through the inclusion of CBO's as a viable deliverer of services, and
it's important that the language of the CETA legislation be written
mandating greater uses of OBO's in the planning and implementation
of all CETA programs.
After 4 years of CETA enactment, 010's and other CBO's must rely
on Federal legislative guarantees to preserve and insure their roles
as legitimate and effective deliverers of services.
We feel that with the reenactment of CETA, hopefully, many of the
problems that have been identified will be addressed.
It is recommended that legislation dealing with specific target
groups, such as youth, receive the kind of coordination and comprehen-
sive planning and implementation being accorded business under the
private industry council title of CETA.
Although youth councils have been established in the current legis-
lation, it is important that youth obtain a more active role in the
decisionmaking process. Therefore, we suggest that at least one-third
of the youth council be comprised of youth who are in the program,
as opposed to selected by the prime sponsor.
This will enable youth to experience a greater feeling of involve-
ment in their lives, and in their training that they are to receive.
We also feel there is a need to provide meaningful career develop-
ment and vocational direction at the elementary school level. There-
fore, it is recommended that the youth legislation provide funding for
demonstration programs that are innovative and creative for dis-
advantaged youths ages 10 through 14, with monetary incentives per-
haps as opposed to wages.
Thank you very much for your attention.
[The prepared statement of Ms. Harvey follows:]
PAGENO="0030"
26
TESTINONI' OF MRS. GERAlDINE HARVEY, EXECUTIVE DIRECTOR
CENTRAL NEW JERSEY OIC BEI~ORE TEE SIR COMRITIEE ON
HUMAN RESOURCES, JULY 31, 1978, PERlE AMROY, NEW JERSEY
1. What do unemployed youth expect from work and to what do they aspire?
MDst unemployed have little expectation about other than to receive
noney for tasks performed. However, when youth are provided an opportunity
to relate their feelings about work expectations through career counseling
and/or classes in orientation to the world of work that other factors are
considered. Some of the other work expectations are:
1. To keep busy and to avoid other problems that occur when there is
too much free tine.
2. To achieve status in the neighborhood as one who works at a job.
3. To experience job satisfaction from the work situation.
14~ To be treated with respect by supervisors.
5. To rr~et and socialize with other people on the job.
6. To experience job security and obtain company benefits.
Unemployed youth have little or no career aspirations. Over 90% of the
youth OIC serve have no definitive vocational choice. Also, rarely do they
cone into 010 with aspirations to seek ~sployment that offers job nobility.
This concept has to be presented to them as being both realistic and within
their reach.
Youth who have received pre-vocational services such as career information,
remedial education, and instruction in proper work habits and attitudes
become highly rrotivated to receive training in the vocational field of their
choice. They would also like to ~e paid while receiving training.
2. What factors contribute to a rate of minority unemployment double the rate
of non-minority unemployment nationally, and how well do Federal programs
such as CHIA address these factors?
Poor self image, poverty, disruptive family life, lower educational
achievement levels, job discrimination, lack of saleable sldlls, a sense of
apathy or defeat, as well as insufficient role mxlels in their corrrunity who
are worldng and enjoying their jobs are antng the factors contributing to the
double rate of unemployment among minority youth to non-minority youth.
Federal programs, such as CETA, have not addressed itself to the multi-
faceted problems of disadvantaged minority youth. CETA has not been truly
successful in establishing linkages with social service agencies, schools,
coninunity based organizations and parents of minority youth. There is little
comprehensive planning by Federal agencies, including CETA, to coordinate arid
maximize services that will impact on the total problem of youth which includes
his family, environment, and individual development in our society.
Until sigaificant efforts are made to involve all deliver~ of human
services in the planning and development of services to youth, including
provisions allowing youth themselves to undertake a greater role in determining
PAGENO="0031"
27
(2)
what kind of training and services will be provided, we fall short of
reducing the uneuployment and social problems of disadvantaged youth.
3. Has CETA been successful in targeting jobs and services to those most
in need?
CETA has enjoyed very limited success In targeting jobs and services to
those most in need. The statistical data reported regarding numbers of dis-
advantaged or significant segnients of the population served, are Inflated due
to the practice of multiple counting of a single enrollee possessing several
characteristics of the priority groups to be served. ie: " a black female,
head of household, welfare recepient."
Unforturiately,tI~4~enPhasis on "cost effectiveness and administrative
control', has become one of the over-riding motives in the development of
errployment and training delivery systems, which are fragn~nted and do not
address the needs of the truly disadvantaged.
Many Prime Sponsors have also become program operators and are eliminating
or reducing creative and successful enployment and training designs historically
perforred by CEO's, charging these functions are duplications of services
they now provide. This charge of duplication of services, in many instances,
is unwarranted and can be attributed to many Prime Sponsors themselves who
have established unwieldy bureaucratic structures providing the types of
services and serving the population duplicative of the Employment Service.
The PrirrE Sponsor's preoccupation with being "cost effective" has led
to "Creaming" program participants in order to meet certain placement quotas,
providing skill training in the shortest period of tiirE and providing in-
sufficient funding in areas of day care, transportation, and pre-vocational
training. These practices, along with little or no outreach and recruitment
prograrris tailored to attract those in greatest need, seem to be contrary to
the manpower delivery system required to meet the Congressional intent of CEPA.
~ What is the optimum role of coninunity-based organizations in an employment
and training system that now includes local government, local schools,
and local private sector efforts?
The optimum role of corrm~nity-based organizations with expertise in pro-
viding employment and training services is to become equal partners with local
government, local schools, arid local private sector efforts instead of the
adversary or competitive role many CEO's are currently experiencing. The
widely practiced policy of bidding for CEPA dollars has placed many CMOs at a
distinct disadvantage. CBO5 with demonstrated effectiveness are competing with
tax-supported agencies! institutions and the private sector who can consistently
under bid them in terms of program cost because they possess equipment, fac-
ilities and financial resources not available to CMOs. There is a strong
possibility however, that low budgeted programs may prove more costly over an
extended period of time because the employment and training needs of hard-
core disadvantaged continue to be unmet.
CMOs, like OlCa, who have many years of experience providing employment
and training to the disadvantaged, should be regarded as the link between the
target population and the schools, private sector, and local government.
Training programs for in-school youth should be developed and implemented in
concert with CMOs who can reinforce, in the community, positive work habits
and skills presented in the school; thereby impacting on the potential drop-out.
Young drop-outs can receive a second chance to develop meaningful educational
PAGENO="0032"
28
(3)
and prevocational skills training through the flexible delivery system
instituted by coninunity-based orgeriizations. CBOs can provide the private
sector with a pool of well rrotivated, qualified individuals who can fulfill
their Affinnative Action requirenants and labor needs.
These are only a few of the benefits realized through the inclusion of
CEO5 as a viable and effective deliverer of services. It is irrportant that
the language of the CETA legislation be written ~condating greater use of CBOs
in the planning and ~plecontation of CEPA programs.
After four years of CEPA enactcont, OICs and other CEOs providing ~rploy-
cent and training services un1strely on Federal legislative guarantees to
preserve and insure their roles as legitimate and effective deliverers of
errploycent and training services.
SUGGEEIED B~JCLUSIONS FOR YOU~IH PROGRANS UNDER CETA REENAGINENP:
Hopefully, with the reenactcent of CEPA, problems that have been identified
will be addressed. It is reconirended that legislation dealing with specific
target groups, such as youth, receive the kind of coordination and conprehen-
sive planning and inplerrentation being accorded business under the Private
Industry Council title of CETA. Although youth councils have been established
in the current legislation, it is irrportant that youth obtain a core active
role in the decision making process. Therefore, it is suggested that at least
one third of the Youth Council be conprised of youth elected by their peers
~ by the Prire Sponsor. This will enable youth
to experience a greater feeling of involvenent as well as achieve status in
the coimnunity from which they coma. In addition, Youth Councils should be
set up as a seperate entity from the existing Prime Sponsor Planning Council
with the right to accept or reject the Youth Plan.
The need to provide rreaningful career developrrent and vocational
direction is manifesting itself at the elerrentary school level. Therefore, it
is recorarended that the youth legislation provide funding for demonstration
programs that are innovative and creative for disadvantaged youths ages 10
through l~4 with monetary incentives as opposed to wages.
PAGENO="0033"
29
The CHAIRMAN. That latter sounds to me as though you would take
the concept of Head Start, which is preschool, and apply it to pre-
vocation.
Ms. HARVEY. Yes.
The CHAIRMAN. Is that part of the contract you're drafting; the
model contract?
Ms. GRANT. It wasn't; but it will be.
The CHAIRMAN. Excellent.
Ms. HARVEY. Thank you.
The CHAIRMAN. I will say in regard to the private sector mitiatives
program, there was a gathering of the business community at the
White House. I was there.
The first to rise to make an observation was Dr. Solomon, followed
by Bernard Jordan, followed, I think, by Clarence Mitchell, all of
course describing the opportunities available through community
based organizations. You have more completely described th~ oppor-
tunities that are available through community based organizations
than they did, but the same philosophy of the tradition of serving
urban needs so well through CBO's.
Ms. HARVEY. Thank you.
The CHAIRMAN. Now, from the Puerto Rican Association for
Human Development, we have Mr. Gonzalez and Mr. Espada.
Who will speak? Mr. Espada? Thank you.
Mr. ESPADA. Good morning. My name is Abraham Espada, and
I am, as you have been informed, the chairman of the Puerto Rican
Association of Human Development, but not necessarily the Office of
Human Development, located here in the city of Perth Amboy.
We are one of two Puerto Rican community-based organizations in
the county of Middlesex. We're the only Hispanic/Puerto Rican
human service agency serving the city of Perth Amboy and Greater
Perth Amboy, which also includes the town of Carteret and all towns
south.
I wish to say thank you, Mrs. Harvey, for your very candid and
pointed unequivocal remarks; and to the other members of the panel.
My remarks will be limited, because I have a great ambiguity and
feeling of where do we go from here.
The U.S. Commission on Civil Rights studied Puerto Ricans in the
years 1975 to 1976, and published a report on "Puerto Ricans In the
Continental United States: An Uncertain Future." And all the data
is there, so I shall not take the time to repeat any of that data.
That study was primarily done in the tristate area of New Jersey,
New York, and Connecticut. So, as I said, I will not take time.
I want to echo some of the information shared thus far, particularly
the data Mrs. Harvey shared. The figures are inflated and, as has been
experienced with other ethnic racial minority groups~-blacks and
others have the same experiences as the Puerto Ricans and Hispanics-
you need numbers, you can get numbers-and numbers produce dollars.
But the dollars seldom come down to the community based
organizations.
I shall be candid in my remarks, and I think you will appreciate
that candidness.
As I've already indicated, I'm Puerto Rican, and therefore my con-
cern at these hearings on the questions being addressed is how do they
36-289 0 . 79 - 3
PAGENO="0034"
30
impact and how do they relate to the Puerto Rican community or the
Hispanic community.
For the State of New Jersey, the projections are that by the year
1980, we shall be half-a-million. A recent newspaper article in the city
of Washington, D.C., had projections that by the year 2000 we would
be the largest ethnic minority in the United States.
Those kinds of figures raise very, very serious questions. And, again,
I must say "here we go again. Are. we being studied and investigated?
And where will all that go?"
I will try very, very briefly and quickly to address the four basic
questions that were addressed in the letter received dated July 19,
1978, from your office to Mr. Gonzalez, our executive director.
The first question speaks about expectations, it speaks about aspira-
tions. The issue of expectations and aspirations seems to me is answered
in the second question:
"What factors contribute to a rate of minority unemployment double
the rate of nonminority unemployment nationally, and how well do
Federal programs such as CETA address these factors?
My first response is that the question reflects a degree of failure on
the part of the Federal Government, a degree of failure on the part of
all those in bureaucratic society that have responsibility. Thus, the
question has been asked.
My second response to this question has to do with where does the
money lie and who makes the decisions. I'm a firm believer that it is
a good idea to have representation. I'm a firm believer it is good to be
on boards.
I'm a member of the title XX advisory committee in the State, and
also other similar kinds of committees, boards, and organizations.
Our capitalistic society is based on money. If you don't `have the
money, it's very difficult to make the decisions and to provide for
those with greater need. I can share my thoughts, I can share my
feelings, I can be innovative in all of that-but if the bucks are not
there it's very difficult to proceed.
In relation to that, I think if we look at the composition of those
that have set up these kinds of hearings-I wonder on the allocation
of moneys for the setting up of the hearings-and then I ask the
question what happens if those moneys were to be invested in the
nonminority community rather than the minority community?
The cohort of the Hispanic/Puerto Rican family is steadily increas-
ing, as I have indicated, and yet we find-and I am in the field of
higher education; I teach at Rutgers University-we find that at least
our universities are saying that the college rate is dropping and we
have to project for the 1980's and 1990's; there aren't going to be
that many coming to the universities. That comes down on the high
schools and the public school system.
There aren't that many-the population rate is not spiraling-
we find in the Hispanic community and in the Puerto Rican com-
munity that our families are growing. So there is a disparity with
respect to those kinds of figures.
The third question that is asked is: "Has CETA been successful m
targeting jo'bs and services to those most in need?"
I think that Ms. Harvey very ably answered that question-very,
very limited. And we find staffing patterns within the CETA are
made up-well, there is much to be desired.
PAGENO="0035"
31
The last question that is asked is: "What is the optimum role of
community based organizations in an employment and training sys-
tem that now includes local government, local schools, and local pri-
vate sector efforts?"
Once again, I'd like to echo the remarks that were made
previously. But, yes, there is a optimum role in the community-based
organizations.
Our competitive society is based upon ownership, and our com-
munity based organizations are an alternative to already-established
institutions and organizations that have not responded to the needs of
the poor,' the disadvantaged, Hispanics, Puerto Ricans.
So, yes, the Federal Government must do `all that can be done to
maintain our community based organizations.
I would venture to say that perhaps some investment of money, a
rather considerable investment of money, should be given, for example,
to organizations such as ours so that we can also conduct investigative
procedures and come up with real answers and real recommendations.
I'd like to clos&-and I wish not to be disrespectful, but I stated it
before-I'd like to close by simply saying give us' money. Many other
people have said that. I say that. We say that.
I assure you-insure you and assure you-that we shall be responsi-
ble, that we shall meet the needs of our people that are not being
met thus far by the complexity of our bureaucratic system..
Thank you.
[The prepared statement of Mr. Espada and additional material
follows:]
PAGENO="0036"
32
TESTIMONY
resented for the Puerto Rican Association
for Human Development, Inc.
by Abraham Espada, Chairman
and Israel Gonzalez, Director
To the Honarable Senator Harrison A. Williams, Chairman
Public Hearings on Youth Unemployment
Perth Amboy, New Jersey
31, 1978
PAGENO="0037"
33
The public school system in New Jersey, and apparently
nationally, is failing criminally our youthful population,
especially the needy. With this failure of the educational
system, long considered the salvation for newcomers to this
country, there is little provided by society as a real al-
ternative for the disenchanted youthful population to grasp
on to in order to achieve.
The salvation through educational achievement has not
been seen as knowledge for the sake of knowing, but rather,
it is seen as the means to economic stability. The failure
of public education therefore signifies to the poor youthful
population hopelessness and resignation to a precarious life
at best. The worst outcomes of course are ignorance, abject
poverty, lack of productivity, crime, self destruction, alien-
ation and becoming a public burden, in which case society in
turn seeks less than possitive means to rid itself of the bur-
den.
An untrained population in society, at this time, has lit-.
tie if any desirable alternative for reaching the socially ap-
proved goals propagated by our society over its powerful public
media, which goals are usually limited to a small group within
the population at any rate. Respectful economic success than
is no longer within its grasp. The alternatives truly avail-
able to the educationally disenfranchised and economically de-
prived are within the anti-social and self-destructive sector.
Relative to minorities finding themselves educationally
cheated and economically deprived, one of the more significant
professions to which minorities have aspired and have used to
help uplift their own,
PAGENO="0038"
34
the teaching profession, is no longer viable to them on the
basis of supply and demand. With teaching unavailable as
means to success, to status, and to assist the ethnic group's
youth in achieving, a vital tool, used by many previous groups
to ascend economically, is today absent to the more recent new-
comers.
Of course, there is an assuiiption made here, and that is
that society will be willing to accept the trained newcomer who
is usually "different" in culture, skin color and values. The
society has been shown to be discriminatory on many levels, what
with the native Hispanic northarnericans, the black and Indians
having been kept rejected by society when they in fact were not
"newcomers~ But we could pretend that the "different" are ac-
cepted if they get trained, but they are not being trained.
The newcomer, too often, has not come on his own, rather he
has actually been brought and, as often, lured for a specific pur-
pose cheap labor. After the war (WW1I) when the need for cheap
laborers subsided and after mechanization made too many laborers
obsolete, the newcomers, especially the more recent ones, not
only were they not in demand but in fact found themselves without
the job they had. They became a burden to society. Apparently
society wanted them to return to where they came from; they had
served industry' s purpose. They would not however, as industry
has moved to the suburbs and to the sunbelt.
PAGENO="0039"
35
In New Jersey, it is clear, industry abandoned the cities and
someone forgot to plan for public transportation so that the city
dweller could get to jobs where industry had moved. Did some forget?
Unlikely, since industry would have seen to it if they had wanted or
needed public transportation for inner city dwellers to get there.
The enclosed copy of the article on the Canden Hispanic corrinu-
nity is quite appropriate here, Its title, `There Dreams Die' is the
substance of the arguiient presented here. What is a person to do if
he sees his dreams dying, or dead? During the Depression many who
saw their dreams dying took their lives. What do minorities do who
can have no dreams, or who ignorantly believe they can reach IV dreams?
We all know. We also know what society does to them, wanting to f or-
get too quickly how the nightmare all came about.
Unemployed minority youth, as all other youth, expect work to
satisfy a financial need. For minority youth perhaps work might al-
so mean satisfaction. This however, is unlikely for untrained, un-
educated, ashamed, often illiterate or, as the teaching profession
has managed to call eighth graders who have gone through the sys-
tem but cannot read or right above a second grade level at best,
functionally illiterate minority youth. They know the American
dream! They have seeii it all on TV, day and night, endlessly.
Shame and feelings of worthlessness are easy to acquire for a
youth who can tell the difference between him/herself and those
who can have dreams. Even Lucan, who was raised by a she-wolf,
PAGENO="0040"
36
was going to college. Yet Juan Rodriguez dropped out in
Middle School and knows he cannot read or write. There
probably are few jobs he can get that will bring satis-
faction.
Minority youth can aspire to all dreams that are
talked about, but they soon find that dreams don't come
3 for a dollar. They are much more expensive. If he
could find a good job with good pay!
Hispanic youth often is married, or has family re-
sponsibilities. It is well known that the Puerto Rican
population is very young. But how does a young population
support itself when there are no jobs? What becomes of the
young family when the young husband cannot provide for the
wife and children? After all, doesn't society still expect
the man to provide? What becomes of the "second" generation?
Can the Puerto Rican "second" generation make it like the pre-
vious groups made it? Maybe in 120 years from now, if the rest
of society remains at the present level (U.S. Census- 1970- pro-
jection by Puerto Rican Congress of N.J.). It took Black Americans
longer that, even when they built their own infrastructure to ed-
ucate their own and to develop their leadership.
Youth who have few if any of the necessary tools to make
dreams come true cannot aspire to much. Those who do usually find
that their means for aspiring are illegal.
The factors contributing to double the rate of unemployment for
minorities as that of non-minority nationally have been covered in
part in the introduction. Minorities were brought here with a
PAGENO="0041"
37
specific purpose. Once the purpose was served and they be-
came obsolete, as machinery often does, they are no longer
needed. of oucrse, a laborer cannot be recycled, as is an
obsolete machine. Society then inherits a problem. At least
that is for cities such as, in New Jersey, Perth Amboy, New
Bnn~swick, Newark, ~anden, Atlantic City, etc.
It should have become clear by now to legislators and
bureaucrats that programs such as CETA are no solution. I
guess we are aware of course that they are not meant as sol-
utions.
The Hispanic experience with CETA has been one of in-
penetrability. We are still, five (5) years later, dis-
cussing with the Prime Sponsor how difficult it is for them
to find Puerto Ricans to hire, except of course at the cler-
ical level. In other words, tne prime emergency employer
does not employ them, certainly at no decision-making employer
does not employ them, certainly at no decision-making level.
It can be futile and morose for us to go program by pro-
gram to demostrate that they have not worked for the Hispanic
people. The federal, state, county and municipal bureaucrats
all know they have not worked. They know it because they are
the ones in charge, making the decisions. If the programs
themselves do not hire the Hispanic, how can it work? Who is
going to hire the Hispanic? It may be worthwhile to incur in
PAGENO="0042"
38
morose repetition: trie municipalities do not hire the Hispanic,
the county governments do not hire the Hispanic, the state govern-
ments do not hire the Hispanic, the Federal Government does not hire
the Hispanic. We already siad that industry moved out. Why else ~ould
the "official't nemployment rate for Hispanics in Perth Amboy be about
257~?
I urge the Senator's staff to read, think and take action on the
U.S. Civil Rights Corrmission.' s 1976 report on"puerto Ricans in the
Continenatl United States: An uncertain Future'.' The title should
have read "A Squalid Existence" since futures are tenuous at best.
CEI'A has not to targetted jobs and services to those most in
need. It has been selective. It tests out applicants who are
likely not to succeed in its programs. CETA administrators blame
it on DOL requirements (success-numbers oriented). Does it really
matter whose fault it is? Even if CETA could be effective, to what
extent could it be, given the gravity of the problem ?
Could CE1~A solve the educational problem, the public transpor-
tation problem, the discriminatory practices at all levels, etc
Many of us have achieved a significant level of paranoia and
shame when dealing with government funding. After all, have we not
been told countless times how we came here to get on welfare? Of
course many of us do not realize that it is the educated and more
affent who benefits most from social welfare programs. So when we
talk about government funding we cannot bring ourselves to say:
give us the money, plenty of it, if you will not give us jobs, so
that we may create the jobs and assure our future.
PAGENO="0043"
39
What is the CEO's optimume role in this employment and
training system? It is that of a useful tool when and if it
seeks, often at the end of a great struggle, to sponsor a pro-
ject for which it gets 87~ administrative cost. Consider the
administrative cost dollars that have been sliced of the allo-
cation all the way up to the highest level of the bureaucracy.
What can the role be if CBO' s have no role in it to begin
with? The CBO' s ours at least, came about because we as a co-
rrrnunity have no role and get no money (u.s. Civil Rights Coninission
Report). It is a way of developing our own system for helping and
leading our own. It is self help, separate, not because we choose,
but because, as we well found out in Perth Amboy, even a CBO was
seen as undesirable. Of course it is undesirable, we might succeed
in duplicating the Black people's independent struggle to educate,
inform and train their own. Of course, the 60' s were very much in
their minds in 1973.
We all know that the CBO' s can have very little to say in what
is done by CE~fA or other government programs because they do not
have the decision making power; they do not have the money. It seems
some of us are able to go beyond our paranoia and shame to say: Give
us the money or give us work; we served our purpose but cannot be re-
cycled like machines. If we remain just discarded, society will con-
tinue to pay deeply for the refuse- jails, courts, hospitals, special
schools, etc.
PAGENO="0044"
40
The cost is great, true, bet we in the CBO's do remember once in
a while, when making a referral or when asked for assistance on
how to serve our people, that these institutions, in fact do em-
pioy lots of people, other people.
Obviously we have not tried to do the unreasonable by trying
to delinate answers to the questions given us in the form that the
Civil Rights Coimaission has done it and in the form your office ex-
pected it. Our CBO would go down the drain so fast, if we devoted
more time to the questions, that we would not realize what happened.
Nevertheless, our effort is sincere and realistic.
The Senator's office knows of our self help efforts. We have
in the past asked him to assist with the charter for EL PUEBLO F.C.U.
He did. We are constructive and we work hard, just as our parents
worked hard, for the factories before automation made us obsolete,
and before they moved out of town.
We can work together with you. Look us up. In the meantime
we'll go it the self-help way. You can think about what we have
said seriously; we are.
PAGENO="0045"
41
I!ISPANICS I~ NE~ JER5EY~
Prime Target for CETA
Puerto Rican Congress of New Jersey
222 9est State Street
Trenton, New Jersey
by CI~TA Component
PAGENO="0046"
42
TABLE OE CONTENTS
Subject Page ~
Section I: Socio-Economic Characteristics of Hispanics
in New Jersey i
a. Demographics 2
b. Family dharacteristics 2
C. Income and poverty status 2
d. Education, employment and occupation 2
a. Factors affecting the socio-economic status of
Hispanics in Now J rsey
Section II: Hispanics, Job Training and CETA 5
a. The importance of job training programs for
Hispanics 6
b. Hispanics and CETA training and employment programs 6
c. CETA participants 7-8
Section III: Summary and Recommendations 9-10
Tables:
Soclo-Economic Characteristics of Hispanics in
New Jersey 4
Persons of Spanish Language in Net' Jersey 11
Unemployment Rate (by County) 12
CETA Participant Characteristics 13
Unemployment Rate (~tatewide) 14
Endnotes 15
PAGENO="0047"
43
Section I' Socio-Econo~jc Characteristics
of the Hispanics in New Jersey
a. Denographics
b~ Family characteristics
c. Income and poverty status
d. Education, employment and occupation
e~ Factors affecting the socio-econortic status of Hispanics
in New JErsey
PAGENO="0048"
44
Section I: Socio-economic characterietics of Hispanics in New Jersey
a. Demographics
Hispanics are a very youthful population with a median age of
18.9 years. ~Jhile 33.4 percent of the state population is under
the age of 18, 48.3 percent of Hispanics are in this age category.
On the other hand, 9.8 percent of the state's population is over 65
years, while only 1.4 percent of Hisoanics are over 65 years (See
Table I).
b. Family Characteristics
Hispanics have younger, larger families than the state average.
The mean Hispanic family size is 4.3, compared with 3.6 for the state.
More than half of the Hispanic families have children under 6, com-~
pared with one-fourth of all New Jersey families. Also, while 11
percent of New Jersey families are headed hy a woman, one-fifth of
Hispanic families are female-headed (see Table I).
c. Income and Poverty Status
A March, 1976, survey by the Census Bureau revealed that His-
panic families in the U.S. were substantially poorer than the total
population of the country and that Puerto Rican families were the
poorest among all Hispanics. Median family income for Puerto Picans
in New Jersey is 56.6 percent of the average realized by all families
in the state. Per capita income of Puerto Ricans is 43.9 percent of
the statewide averages.
The relative number of Puerto Rican families living with public
welfare income is more than four times that of the state; 20 percent
for Puerto Ricans compared with 4.6 percent for the state. The per-
cent of Hispanic families living with income less than poverty level
is four times the statewide average; 24.3 percent compared with 6.?
percent for the state.
d. Education, Employment and Occupation
One out of every five Puerto Ricans are high school graduates,
as contrasted with the statewide norm of more than one out of every
two. The median educational level for Puerto Ricans is low, 8.3
median school years completed compared with 12.1 for the state. In
addition, Hisoanics have the highest dropout rate in the stat~. They
are dropping out of school at a rate four times that of the state-
wide average and twice that of Blacks. Hisoanics, also, have the
hiqhest rate of unemoloyment among all ethnic groups in the state
(See Table III).
Hispanic workers are heavily concentrated in low-skilled, blue
collar lobs: 67 percent compared to 36 percent for the state average.
2
PAGENO="0049"
45
Furthermore, they arc employed in declining areos such as ia~or in-
tensive light industries and are subject to layoffs end seasonal emp-
loyment. When compared with the total population~ it is also clear
that Hispanics are under-represented in high-skill, white collar
work; 19.0 percent compared to 52.7 percent statewide.
e. Factors affecting the soclo-eLonomic status of Wisoanics
Families headed by a woman tend to earn far less than those
headed by a man, and Hispanic families are female-headed in a pro-
portion almost twice that of the state average; 19.1 nercent comnared
to 11.0 percent.
The nercentage of Hispanic families with children under six
years of aqe is also twice that of the statewide average. The need
to care for young children and the lack of adequate child care facil-
ities are factors that inhibit the participation of Hisnani.c ~7oTnen
in the labor force.
The job market itself is another factor While Hispanics live
in the inner-cities, jobs are movinct to the suburban areas. This
creates a problem for the Hispanic as he can afford neither housing
in the suburbs, nor automoblies to commute to factories and offices
in the suburban areas.
Limited ability to speak and understand Enqlish severely handi-
caps Hispanic mobility within the job market. When seeking work,
Hispanics tend to rely upon informal channels of communication, such
as friends or relatives, rather than radio, television, and news-
papers.
Training programs that might prepare Hispanics for better jobs
generally are offered only in Enql~sh. Inability to master English
makes it more difficult to assimilate training, and this is very
often interpreted as a mark of inferior intelligence.
~nother important factor is the lack of work experience end
marketable skills. `lithout useful job experience or training, entry
into better occupations is difficult for Hisoanics.
36-289 0 - 79 - 4
PAGENO="0050"
Table 1 SCCIO-ECONOMIC CHARACTERISTICS OF HISPANICS IN
NEW JERSEY
New Jersey
P.R. Total
p~~g~raphics:
Percent under 18 ysars old 48.3 33.4
Percent 16 years old and over 55.3 70.2
Male 49.2 47.2
Female 50.8 52.8
Percent 21 years old and over 46.1 62.2
Percent 65 years old and over 1.4 9.8
Median age 18.9 30.2
Family Characteristics~
Mean Family Size 4.3 3.6
Percent Female heaied families 19.1 11.0
Percent Families witI~ own children under 6 years 50.9 25.3
Percent persons unler 18 years living with both parents 78.6 84.8
Economics:
Median P.R. family income as a percent of that of
total population 56.6
Per capita income of ..uerto Ricans as a percent of that
of total populatioi 48.9
Percent families with public welfare income 20.0 4.6
Percent families with income less than poverty level 24.3 6.1
Education: (Persons 25 years old and over)
Median school years completed 8.3 12.1
Percent high school graduates 20.4 52.5
Persons ±4-il years - percent in school 80.7 94.7
Employment:
Percent in the labor force 59.2 60.0
Males 82.0 79.6
Females 37.1 42.5
Occupations:
White Collar 19.0 52.7
Blue Collar 67.0 36.0
Service Workers 11.3 10.7
Source:
U.S. Bureau of the Census, General Social and Economic Characteristics:
N.J., 1972
PAGENO="0051"
47
Section II: Hispanics, Job Training, an3 CET~
a~ The importance of job training prograns for Hispanics
b. Hispanics and CETA training and ernnloymsnt programs
C. CETA participants
5
PAGENO="0052"
48
Section II~ Hispanics, Job Training and CETA
a. The importance of job training prograris for Hispanics
Several studies have founc~ the following facts that document the
importance of job training programs towards improving the socio-eco-
nomic status of Hispanics~
-~ Employment and median hourly earnings among workers completing
some training program is considerably higher than among those
without training.
- Persons receiving job training are about twice as likely to
be in professional managerial and technical jobs as those
without such training.
Unemployment among workers completing training is 50 percent
less than among those without training.
Labor force participation an~3 employment rates are higher for
Hispanics with job training.
- Hispanic enrollees in training programs ~realized substan-
tially greater gains in e~nloyrent and earning than either
Anglo or Black enrollees' ,
Despite the growing documentation that indicates the importance
of job training, relatively few Hisoanics are served by these prog-
rams, as reflected by their low participation rate in CETA manpower
services. For example, based on our latest population estimates,
there are about 639,436 Hispanics living in New Jersey. (See Table
II). Eighty-two percent of this population, or about 524,320 per-
sons, reside in the northeantern part of the state Passaic, Bergen,
Morris, Essex, Hudson, Union, and Niddlesex Counties.
Nevertheless, according to the nost recent quarterly reports,
March 21, 1978, of nine prime sponsors serving this area, only 4,772
Hispanics are being served by CETA, which represents less than 2 per-
cent of the adult Hispanic population in the area. This is of great
significance considering that one out of every four Hispanics is dis-
advantaged; i.e., 24~3 percent of Hispanic families live with an in-
come of less than poverty level (See Table I).
h. I~panics and CETA training and employment prograns
Everything Hispanics have been asking for in manpower orogram-
ming is provided inthe CETA Act at least on paper. Titlel stioulates
that state and local prime soonsors must orovide eroloy!ient and
training services, and a1~o the development of job opportunitiec to
those most in need of them, to include low-income persons and per-
sons of limited English-speaking ability. In addition, Title Iii
6
PAGENO="0053"
49
authorized the Department of Labor to undertake prolects, such as
the teaching of occupational language skills in the primary language
of persons with limited prficiency in Thglish and the development of
new employment opportunities.
Nevertheless, Hispanics are usually under-represented as program
participants, particularly in skill training programs. Fnglish as a
Second Language (ESL), is provided only as an isolated, individual
program. A survey of twelve (12) prime sponsors showed only one (1)
had an ESL program (Middlese:~ County). In addition, there is little
representation on advisory councils and boards by Hispanic reoresent-
atives and leaders, and in many cases no representation at all, as
shown in a recently made survey to prime sponsors. For example,
Passaic, Union; Essex, Camden and Hercer Counties don't have any His-
panics on their advisory boards. At the same time, Hudson County,
with an Hispanic population of over 150,000, has only one Hispanic
member on the advisory board. Newark, with more than 100,000 His-
panics, has only three.
As noted in the U.S. Commission on Civil Rights Report cited
earlier:
Too often training programs failed to recognize and deal
with the uniqueness of the needs of the Hispanics. The
decision makers often do not know enough about the language
and cultural characteristics of the people to develop viable
effective programs. The fact that Hispanics speak a foreign
language and have different backgrounds is regarded as be-
ing their own probldm; and the need to establish programs
built upon serving people from different cultures is not
always recognized. As a result while the basic idea of
training and education for the disadvantaged may be sound,
the policy for implementation may have built-in difficul-
ties. If manpower programs are to serve Hispanics effec-
tively, there must be an effort to develop sufficient
numbers of skilled Hispanic policymakers and place them
at all levels of the delivery system. 2
C. CETA participants
The wrong people are being served by CETA training and emo-
loyment proqrams~ National statistics indicate that, as an example,
Fiscal Year l')76 Title VI participation was oriented toward Ancilo
males with high school education or better~ At the national level,
minorities and women, those with limited education and skills,3vouth
and older workers were not being served to the extent desired.
In New Jersey, statistics from the State Manpower Services in-
dicate that CETA enrollees are older, better educated and less dis-
advantaged than the average Hispanic~ as shown in table emtitled'CETA
Participant Characteristics'. This table also shows that Hispanic
participation in CETA programs is, if not declining, continuing to
suffer from benign neglect. During Fiscal Year 1976, Hispanic
7
PAGENO="0054"
50
participation in CI~TA was l6.~) oerceni un?.cr Titir I, 7A nercent
under Title II, and 6.8 oe,-cent~ ~e-~er Title ~I. For Ciscal Year
1977, Hispanic partici:ation won 14.4 Percent, ~. 1 percent and 6.1
percent respectively.
An analysis of the Annual Pepoit to the Governor from the State
rianpower Services Council for Fiscal Year 1977, rcvealed, among other
things, the following~
1) Racial compositioii showed that 56.6 percent of partici-
pants wore White, 40.9 percent were Black, with Hispanics
constituting only 11.3 percent of the total, compared
with an unenolovieent rate of 9.7 oercent for ~7hitcs,
17.2 percent for Blacks and 18.9 percent for Hisoanics.
Examples of prime sponsors with very little participation
of Hispanics in their CETA programs would he Caoden.
Gloucester, and Burlington Counties, where Hispanics
represent only 10.8 percent, 0.8 percent, and 1.9 per-
cent respectively.
2) The age distribution of participants showed that 63.2
percent were 22 years of age, and over 19.3 percent were
between the ages 19-21, and only 17.5 percent were 18
years old and under. As a contrast to the youthful
Hispanic population, see table I democrraohics.
3) Educational attainment~ 61.6 percent were hiqh school
graduates or better, 28.8 percent had 9-Il veers of
school, and 9.6 percent did not even reach high school.
NOTE~ While one out of every five (20.4 percent) of Puerto Rican
adults are high school oraduates, three out of every five
(61.6 percent) of the CETA enrollees are hiqh school eradu-
ates.
The lack of data on Hispanics also limits the effectivenees of
training for them. Data is fragmented, scattered, hard to obtain,
and frequently non-existant. Since the allocation of federal funds
under CETA is based upon available data, accurate figures for the
number of Hispanics unemployed and poor are thus vitally immortant.
Yet such data is, in many areas. no better than guesses.
PAGENO="0055"
51
Section III: Summary and Recommendations
9
PAGENO="0056"
52
Hispanics (especially Puerto Picans) in the f Late of flew Jersey
aro lowest on the income scale. Thry have the largest percentage of
the population below the povertZ level; the lowest median of school
years completed, and the hiqhst dropout rate, Thoy have the highest
unemployment rate, the lowest ra~rosentation in ~ihite collar occu~a-
tions and the hi~hcst in blue collar jobs.
This is due to a combination of factors. flany Hisnanics of
working ace are limited by lack of skills and inability to communi~
cate in English, to jobs in light manufacturing, and industry that
is in a state of decline.
The poor and deteriorating position of Hispanics in this state
can be isvDroved by incraaeing their participation in CPT~ job train-
ing and employment programs. This CETA Act was slated to provide
manpower services and hatter occupational opportunities for the des-
advantaced, and Hisoanics are the most in need.
In that direction we make the following recommendations to grime
smonsors and other governmental units responsible for the implemen-
tation of P.ET~ prograes~
1. Hispanics should be classified as o significant segment
to be served in every prime snonsor area in which His~
panics reoresent five percent or more of the service
population. T;iis will secure a better share of the man-
nower services offered. Of twelve (12) prime sponsors
surveyed, only one classified Hispanics as a significant
segment (fliddlesex County).
2. Ensure. that in addition to standardized skill traininr'
programs, a langucee component is available in job training
programs (ESL) in those areas with persons of limited English
speaking ability constituting five percent or more of the
total population of the area.
3. In addition, bilingual courses should be offered in those
occupations with higher emplovnient opoortunities; (bilin-
gual secretary, office clerk, receptionist, etc.), in those
areas with a considerable Hispanic population (See Table II).
Examnles of prime sponsers with such projects are Camden
City - Bilinqual Peauty Culture Programs, Cuinberland County -
Bilinqual Secret~riti Courses.
4. Hisoanics should be represented on CETA Planning Councils
and administrative bodies in aoproximatoly the same premor-
tions that they comnrise of the service population.
10
PAGENO="0057"
53
Persons o~ Spanish Language in Now Jersey
by County and Selected Cities
(1973)
Counties Population
Atlantic 10,378
Bergen 38,049
Burlington 10,438
Camden 13,121
Cape May 1,103
Cumberland 18,447
Essex 126,715
Gloucester 3,056
Hudson 166,993
Hunterdon 1,391
Mercer 9,203
Middlesex 43,536
Monmouth 19,532
Morris 26,282
Ocean 13,299
Passaic 70,317
Salem 728
Somerset 6,807
Sussex 2,523
Union 52,422
Warren 1,386
New Jersey State 639,436
Cities
Bayone 3,191
Camden 12,105
Elizabeth 37,928
Hoboken 23,898
Jersey City 44,576
Newark 105,481
New Brunswick 4,781
Passaic 29,063
Paterson 35,218
Party Amboy l7,2l3~
Trenton 5,580
Union City 51,460
Vineland 15,613
*Straight_ljne projection based on 1960-70 Hispanic
population growth rates.
11
PAGENO="0058"
54
UNEPLOY~EL~T R2~TE*
by CounLy and t1~nic Group
(1973)
Prime Sponsor Total
Blacks Hispanics
Pergen
9.1
~.l
10.2 6.9
~iorris
7.9
7.9
7.3 15.5
Passaic County
12.7
11.5
20.7 24.2
Paterson
17.2
16.2
20.3 23.0
Somerset. County
6.6
6.4
11.1 -
Essex County
12.5
10.3
18.2 21.0
Newark
17.7
14.8
20.8 22.3
Hudson County
14.1
13.9
17.4 21.0
Jersey City
12.9
12.1
17.0 18.1
Union County
9.1
8.5
14.0 11.0
Elizabeth
11.3
10.3
14.4 13.4
ercer County
7.9
6.8
13.9 14.7
Trenton
11.2
9.4
14.5 15.9
Hiddlesex
10.2
9.9
16.1 12.6
Monmouth
9.7
9.0
16.9 19.1
Ocean County
10.3
10.2
14.2 16.0
Atlantic County
12.3
11.2
17.0 12.3
Burlington
9.6
8.8
18.9 20.4
Camden County
9.5
9.9
17.1 16.0
Camden City
14.7
12.0
19.2 17.0
Cumberland
13.0
11.6
23.0 23.7
Gloucester
9.0
8.7
20.6 9.0
Cape Hay
Nunterdon
15.8
7.5
15.1
7.5
23.3 20.0
6.7 -
The State
10.4
9.7
17.2 13.9
*N.J. Depar~nent of Labor and
Affirmative Action Programs.
Industry,
N.J. 1976
12
Na~owar Information for
PAGENO="0059"
55
CETA Participant Characteristics
Fiscal Yc~ar
Percent
TITLE I TITLE II TITLE VI TOTAL
Characteristics 1976 1977 1976 1~77 1S76 1977 1976 1977
18 and under 38.1 26.0 3.7 3.6 3.4 3.2 25.8 17.5
19 - 21 21.7 22.1 16.4 14.8 16.2 14.5 20.1 19.3
22 and over 40.2 51.9 80.0 81.6 80.4 82.3 54.4 63.2
Education
C and under 13.4 11.3 8.8 6.3 8.4 6.8 11.8 9.6
9 - 11 44.8 35.9 18.4 15.4 17.5 17.1 35.3 28.8
12 and over 41.0 52.8 72.8 78.3 74.1 76.1 53.0 61.8
Ethnic Grou~
White 4~.4 49.2 65.9 71.0 65.6 63.6 49.4 56.6
Black 53.7 47.9 31.4 27.4 31.4 29.6 45.8 40.9
Hispanic 16.0 14.4 7.0 6.1 6.0 6.2 12.8 11.3
13
PAGENO="0060"
56
1~U3LE III
Unemployment itat;e by ~ace 1976 (1)
(S tatc wide)
Race
Unemployment rate
Total
10.4
Uhite
9.7
Black
17.2
Spanish American
18.9
(1) N.J. Department of Labor and Industry, ?~anpower Information for
Affirmative Action Programs, Nay Jersey, 197G.
PAGENO="0061"
57
EUDNOTES
i-u.s. Commission on Civil Rights; Puerto Rican in the Continen
tal United States: An Uncertain Future , Washington, D.C.,
1976. PP. 67, 68. --
3U.S. Department of Labor, Employment and Tra~Lning Administra-
tion, Regional Bulletin No. 56-76. New York, Nov., 1976.
P. 4.
15
PAGENO="0062"
58
The CHAIRMAN. Now, Mr. Espada, let me ask you how you would
react to what those of us who have to develop and project and advocate
and vote for these Government programs always hear. They will
always say to us that the mood of the country is to reduce Government
spending-and that is demonstrated by California's experience with
Proposition 13, which is evidently being carried on prevailing west-
erly winds and has reached our shores. [Laughter.]
Now, almost by definition here, we are talking about young people
who have come into their station in life with a certain disadvantage;
and, out of it all, they're unemployed and poorly equipped to be in
the job market, without some support.
What we have here is something comparable to what in health
delivery is called "certification of need." That's the way it looks to
me.
If you can be certified to need employment and training services, as
in the health delivery area, the CETA program should enter in where
there is a true need.
I had a dramatic story told to me about the closing of a nursing
home development because it lacked the certification of need. Well,
the administrator of that certification, or one of the bureaucrats, was
brought to the area, and there to his visual astonishment, the need was
certified, and he reversed himself, and the nursing home is on its w~y
to being certified.
What you're doing is certifying your need, all of you. What would
impress me and those who are worried about the expenditure of funds,
is that you can certify this need. and demonstrate when that need is
not being met through Federal efforts, so we can prevent a greater
expenditure of money down the line, negative money-welfare, unem-
ployment compensation, all of the rest. That's the way it looks to me.
How does it look to you? I asked you the question and I gave you
my answer. How do you likethat?
Mr. ESPADA. I was going to say that. [Laughter.]
But I appreciate the question.
I think that-and Mr. Gonza[ez would like to give a response to
your question also-I would reverse the question, by asking you
some questions and give an answer.
One is: Where is the greatest bulk of that money being spent? How
does it finally get down?
Second, certification of need is confirmed by these hearings, is con-
firmed by the data already available, and other kinds of reports. It
is there. It is unequivocal and an answer itself.
My answer to you is, give us jobs.
Mr. GONZALEZ. Yes, Senator.
As I wrote in my testimony which was not read-it will be sent to
your office tomorrow-the problem is very serious. Society has pre-
ferred to say, you know, that we have come here for welfare.
I think history shows that Hispanics and Puerto Ricans were
brought here, in fact brought, you know, for cheap labor for industry.
What has happened is that industry has left our cities, and has left
Perth Ambo~, Newwrk, Camden, Philadelphia, et cetera.
I tell you, though, they haven't moved too far, most of them are in
Piscataway, Plainfield, some of the other suburbs.
The problem, however, is there's no bus to get there, and our un-
PAGENO="0063"
59
employed youth-many of whom are, at the age of 19, married and
have families-just cannot afford a vehicle to get there to work.
So, unfortunately, those who want to cut the dollar will cut the
dollar because our communities at this point do not have the power to
keep them from cutting it. What they would do is similar to what
the industry has done-they have used the Hispanic for cheap labor,
and now that he has become automated, the Hispanic worker has been
shoved to the side.
However, unforhinately, the Hispanic worker, being a human being
also, cannot be recycled as an outdated machine, to be converted into
new, clean steel. So what happens is that society is going to suffer
the consequences-more jails, more in jails, more staffing forthe jails,
more in hospitals, more crime, more police, et cetera.
I think that it behooves those who want to be very tightfisted, espe-
cially with the moneys that supposedly are coming down tothe com-
munities, but which in fact only very smaJl fractions of which do
reach our communities, to consider the consequences-as Mr. Espada
has said-the consequences are in writing, have been studied by many
commissions.
Apparently, I think, Senator, unfortunately those people who want
to cut the dollar, the little dollars that come down to our communities,
just really don't care about that data.
Mr. Epps. Senator.
The CHAIRMAN. Yes, Mr. Epps?
Mr. Erps. I think my two previous colleagues raised a much
broader issue, and that's the fact that a number of our industrial
concerns have moved out of the urban areas; they moved away from
the work force, what we call our current work force, to another work
force.
We are placed in the dilemma of training people for jobs which are
no longer available.
I think, as we begin to look at the private sector, which basically
controls 70 percent of the jobs in this area, that we have to look at
new incentives. We have to look at new innovative ways of getting the
work force to those factories which have moved out to 287, which
have moved out to Middletown, which have moved away from the
central city, and have been placed there for the convenience of others
within our society.
Therefore, if we look at youth unemployment, we have to look at
the total unemployment picture. They are impacted more because
of lack of experience, because they are black, because they are Hispanic.
As a result, there needs to be the incentive with the private sector
to bring them back to the community, or to devise linkages, transporta-
tion linkages, which will allow for us to transport those which are
captured currently within the urban community out to a place where
they can jn fact earn a wage and survive in our society.
It's interesting that in the county of Middlesex, approximately
$18,000 is the median income; and we look at the criteria or the regula-
tions for CETA to be under $5,000. I think that is criminal.
I think that we have to move to review the regulations which govern
the qualifications for participants within the program. That goes
beyond this hearing; that goes into other hearings.
PAGENO="0064"
60
And at that particular point there's a need for us to move definitively
to support aspects of the Piresident's urban policies and other urban
policies which in fact encourage the increased utilization of urban
communities; and, particularly here in the Northeast, where we have
an older core community.
Thank you.
The CHAIRMAN. Ms. F[arvey.
Ms. HARVEY. I echo the sentiments of Mr. Epps, but I'd like to just
also interject-by servicing a tricounty area, one of which is quote-
unquote "quasi-rural," mostly surburban-transportation is a very real
problem, and perhaps cannot be addressed unless two Federal agencies
do better coordination, in terms of planning, or what have you.
But I also feel that one of the things that is important is, even
through the areas having tremendous impact are the large urban areas,
that the smaller areas are not penalized. There's a tendency to shift
moneys around, rather than adding more money to it, shifting from
one area to another.
It is sometimes unfortunate because, even though the need statis-
tically is not as great, there is a need for the. kind of services in the town
of Somerville as there would be in the city of Newark. And, hopefully,
there's not that competit:ion generated in order to see who will get their
fair share, but there's a total look at what is needed beyond the scope
of just numbers.
The CHAIRMAN. Thank you.
Ms. GRANT. Senator.
The CHAIRMAN. Yes.
Ms. GRANT. Before, you had indicated that I should do some
thinking, or that perhaps we all should do some thinking about the
concept of direct DOL funding, model contracts so to speak.
I'm not sure exactly what the terms of those contracts would be,
but I know the areas that it might be, and that would be for demon-
strations or innovative kinds of programs where numbers would not
necessarily be. the only outcome, where economic development kinds of
projects would be tied in, and small business development along the
lines of junior enterprise or the like might be possible with earned
income able to be put back into the program for the purposes of
furthering the program, therefore not necessitating an increase in
Federal dollars, but generating private sector dollars.
I'd like to also encourage the Congress to relax some of their con-
straints against involvement of youth with the private sector entities,
except through the use of on-the-job training. We find especially in
large corporations-A.T. & T. notably-they are interested in helping,
but are not interested in on-the-job training because they feel that they
do not incur additional training costs, or extraordinary training costs.
So, therefore, we're missing an opportunity as a result of being unable
to use them except in the OJT capacity, for them to meet youth and
become acquainted with them as a group, and for youth to be exposed
to the real world of work..
The CHAIRMAN. I wish we could continue our discussion, but if
there are supplemental thoughts they would be part of our record of
this hearing and be very useful to all our members.
And I therefore will get to the mayor of Perth Amboy well beyond.
the appointed time. Mayor Otlowski.
PAGENO="0065"
61
You're a master of synthesis. So I'd like to be able for you to bring
your wisdom to us most effectively.
Thank you very much.
Mr. ESPADA. Thank you, sir.
The CHAIRMAN. I know you had something further.
Mr. GONZALEZ. I'll submit it for the record.
The CHAIRMAN. Thank you very, very much.
All right. We will come to order.
I know, Mayor Otlowski, you've been here through all of the hear-
ing, and you know that it was important to us to hear all of our wit-
nesses; and I appreciate your being in attendance and being part of
this all the way through.
Mr. OmowsKi. Well, as a matter of fact, I want to remain to catch
as much of it as I possibly can, so that it inures to my general educa-
tion. There's no question about it, it was very informative.
Of course, it's a great delight for me to be with Freeholder Director
Molyneux; and in the brief time that we had this morning we were
able to exchange some thoughts and some ideas.
Senator, before I testify to the core of this particular hearing I just
want to tell you-you're probably not aware of how grateful we are to
you, that is the city of Perth Amboy, for the many, many things you
have done for the city, particularly in these last 2 years since I've
been the mayor.
I think that Freeholder Molyneux would be the first to recogiiiZe
the importance of your office and the importance of your efforts with
our public works project, which is over a million dollars. And there's
no question about that. You were a very, very important instrument
in that project.
Our police headquarters, which is running another million dollars-
you, again, were a very important part of that.
The fact that our neighborhood health program was in great jeop-
ardy and probably would have gone `by the boards if it hadn't been for
your help.
Again, our community development program, for example, has had
not only your interest, but I like to believe your sponsorship, and the
fact that that has survived. To a great extent, it is to your credit.
I could go on with a whole litany, Senator, of what you've meant
to this city, so that when you come here today-and I haven't had the
opportunity to see you for a long time, with the exception of my con-
versations with your staff or Fred MaZurek talks to your people over
the telephone or we send telegrams or we send letters and your re-
sponse is immediate-so that when you come here today it's not only
to be welcomed, but it's also to be praised.
I have yet to meet a politician who doesn't like to hear that par-
ticular facet of community relations, so that it's a great delight, it's
a great delight to see you and express our thanks to you.
The CHAIRMAN. It's heart-warming indeed, and it's been obvious
over the years how much I enjoy being in Perth Amboy, being in the
county of Middlesex, and to return to see the results of the dedication
we share in meeting human needs. Again, this has been the greatest
pleasure any person in public life can have.
Thank you very much.
36-289 0 . 79 - 5
PAGENO="0066"
62
STATEMENT OP HON, GEORGE OTLOWSXI, MAYOR, PERTH AMBOY,
N.J.
Mr. Omowsici. It's a great delight to have you, Senator.
Senator, you know I'm restricted in my thinking-and that could
be good or bad. I'm in an entirely different position than you, be-
cause you have a responsibility to the State and you have a responsi-
bility to the country.
But when I look at the program that we're discussing here today, I
look at it from the point of view primarily of Perth Amboy-and
maybe I go a little fu:ther and take in some of Middlesex County-so
that whatever I say or whatever I suggest will be far different from
the way this problem is treated throughout the country.
First of all, even in New Jersey, as small a State as it is geographi-
cally, there is no comparison between Perth Amboy and Jersey City;
there is no comparison, between Perth Amboy and Newark; there is no
comparison between Perth Amboy and Camden. Those cities have
problems that are peculiar to themselves, and their approach of course
has to be different than that in Perth Amboy.
Many of the big heavy industries left Perth Amboy-and, just to
refresh your memory: Anaconda Smelting, National Lead, General
Cable-they left.
However, in the last 2 years there's been a turning point, and the
Anaconda property is now being made ready for American Steel;
National Lead, again through the help of your office, with a special
Federal program, National Lead today is occupied by a private en-
trepreneur who is already developing 80,000 square feet with the help
of State and Federal ]noney, and this will mean private employment
that will provide jobs for a thousand people, many of them young
people.
And, by the same token, the General Cable today is occupied by 14
small industries.
So that the big tract that we have vacant is the American Smelting
Refining Co., and if I believe what I want to believe about Texaco
and if I believe what I want to believe about Exxon and Shell Oil Co.,
I thiuk that that tract of the A.:S. & R. right to the Outerbridge will
be occupied by supporLive facilities for the oil companies, which will
provide tremendous employment for this whole area.
So what I'm saying here is the fact that, yes, we've gone through
a period of great injury, great economic injury, when some of these
big industries left. However, we're healing now, and in the last 20 years
there's been a great healing process.
I could go on to poin.t out that there are 23 industries that are going
to break open very sho:rtly here in Perth Amboy, with the tremendous
employment that theyre going to offer people who do not have any
special craft, do not have any special training, do not have a.ny special
educational advantages-but the jobs are going to be here for those
people within the next year, as soon as these industries are built and
as soon as they're operative.
So that I just point this out to you, that there's a difference between
the Newarks and the Jersey Cities and the Perth Amboys.
Now, by the same token, that doesn't mean that we don't have young
people who are unemployed, because that's the curse of the Nation, the
PAGENO="0067"
63
curse of our economy, that young people indeed are unemployed, and
indeed unemployed in great numbers.
I think it would be a mistake to have those young people feel that
their whole future depended upon jobs with the Federal Government,
that their whole future depended upon CETA.
I'd like to think of CETA, or any other Federal program, being
preparatory and being transitional, and serving an immediate need;
so I think that in this area here when we talk, for example, of the
"great industrial belt" that you mentioned and that Freeholder Mo-
lyneux mentioned in this area in the Pascataways, in the Woo'dbridges,
in the Edisons, in the South Brunswicks, where there's been tremen-
dous growth of some of the biggest industries in the country-and it
hasn't stopped.
The truth of the matter is that if one company-one company met
the problem of transportation, you know, with such simplicity that it
ought to shame all of us, and that is Fedders. Fedders employs people
and brings them in by bus from Brooklyn every day.
One of my constituents angered me to no end when she told me she
was going to move to Brooklyn because it's easier to get a bus to
Fedders.
But in any event, Fedders has solved that problem.
Now, I think that some of the other industries in the area are going
to solve that problem themselves, when they wake up to the fact that
the solution rests with themselves and not with gigantic transporta-
tion programs that take great sums of money, and in many instances
do not answer the need.
So that I think that, when we're thinking in terms of Perth Amboy,
when we're thinking in terms of this area, I think that we have to
think differently than we think of some of the other areas of this State
that don't have the advantages, don't have the healing process going
that we have had for the last number of years.
The big problem, yes, is transportation for our young people, to get
people to jobs, today. And the truth of the matter is that that doesn't
apply to the poor alone; transportation today is a problem for all
workers, because the person who is working in Chevron Oil 9 times
out of 10 lives in Woodbridge or Edison, doesn't live in Perth Amboy.
The person who is working in Prudential in Pascataway could very
easily live in the Oranges or in North Jersey. So that the whole busi-
ness of employment today is a problem of transportaion, and parti-
cularly when you address that to the young people it's more pro-
nounced than ever.
How do we get these young people to the job opportunities that are
existing in this county in some of the industries that are developing
and have developed? I think that this is one of the areas that CETA
could really address itself to-and not to set up transportation pro-
grams independent of the industries, but work with the industries to
determine what kind of transportation programs can be set up with
them.
I think there's a solution there. And the best answer, of course, is
what Fedders has done.
The CHAIRMAN. I'll tell you one thing, Mayor, there's going to be a
lot of people late to work today. Already, 287 is bumper to bumper;
and when you run into inclement weather, as you did this morning-
PAGENO="0068"
64
because we came down here at 8 :15-they were stalled all the way up.
Mr. OTLOWSKI. 287 in the mornings and from 4 o'clock on presents
a problem-again, just proving what I said, the people who are work-
ing in Middlesex County are coming to 287, going down into Mon-
mouth County, into Ocean County, back home.
This is how mobile people are with their jobs today. 4nd I'm talk-
ing about that mobility, too, when you're talking about young people,
whether they're people who are deprived or they're people who come
from the middle class. The problem today is transportation, getting
the person to the job where the work is.
How do you get that person to where the work is?
The CHAIRMAN. That's right.
Mr. OTLOWSKI. And that's one of the big problems.
I think, too, that one of the problems that we have in Perth Amboy
with CETA is the fact that we're not a prime sponsor, we have to deal
through the counties.
I think cities of our size, when you're looking at this legislation
again, should be given the opportunity to be prime sponsors. I think
that we could provide opportunities for some of these young people if
we were the prime sponsors so that we could control them, with the
kind of need that we have for cleaner streets, for the betterment of
our parks, for the better attractiveness of our waterfront.
I think if we were the prime sponsors for these projects, where
we had this immediate supervision, that we could really do something
with it and do something that would be of benefit to the city and of
benefit to the people generally.
One other note, so that I don't lose my reputation with you for
brevity, and that is the fact that I think that in this county, in this
county where we have such a wonderful vocational school system,. in
this county too, where many of our high schools have gotten into the
area of vocational training, I think here again there ought to be a
closer marriage between CETA and this whole vocational complex,
so that it's tied in-it's tied in with the development that's taking
place here, and that the kids who are practically nonfunctional today
can be made functional and can be made functional immediately-not
by some academic approach, not by some big sociological study or
some sociologist, but by the need that's here, and by fitting the kids
into that need.
I think that CETA--and, as a matter of fact, when you're lookin
at this legislation again-to look at it, yes; look at. the Newarks an
the New Yorks-that's one problem.
But there's another problem with the Perth Amboys, with the
New Brunswicks, with the Carterets, that have a better shot and are
in a whole different economic area; yet who need this kind of help
that you're talking about here.
The help has to be changed, the approach has to be different, but
it can be done. And, as a matter of fact, I hope that this hearmg-
some of the things that. result from this hearing-will address itself
to that.
Senator, thank you very much.
The CHAIRMAN. Well, that's masterful. I personally appreciate your
comments.
Mr. OTLOWSKI. Thank you.
PAGENO="0069"
65
The CHAIRMAN. More important here is what you've contributed to
your deliberations in the thoughtful process of trying to make our
efforts effective, make them work.
I know that some of your thoughts will tie right, into our next
panel of educators: Charles Boyle, chairman of Middlesex County
Career Education Coordinating Council; and David Tyrrell, dean
of the Division of Engineering Technology, Middlesex County College.
So, again, I thank you for your masterful presentation. It's been
greatly helpful.
Mr. OTLOWSKI. Thank you.
The CHAIRMAN. All right.
Mr. Boyle, superintedent of schools and head of the Middlesex
County Career Education Coordinating Council.
You're in the perfect position to make a significant contribution to
your Congress.
STATEMENT OF CHARLES A. BOYLE, CHAIRMAN, MIDDLESEX
COUNTY CAREER EDUCATION COORDINATING COUNCIL, SUPER-
INTENDENT OF SCHOOLS, EDISON, N.J., ACCOMPANIED BY
DAVID H. TYRR~LL, DEAN OF THE DIVISION OF ENGINEERING
TECHNOLOGY, MIDDLESEX COUNTY COLLEGE, A PANEL
Mr. BomE. Thank you.
Just a followup to a point made by Mayor Otlowski concerning the
vocational schools. At the present time there are just two programs that
have been operating for CETA in the vocational schools:
(1) A summer SPEDY program, which you heard about earlier, of
approximately 87 students in Perth Amboy Vocational School; and
(2) Last January, a program of medical secretaries, and 20 females
were involved in the New Brunswick Vocational School.
A tip of the iceberg, an infinitesimal amount of what the county vo-
cational schools should be training.
As you indicated, I do represent the Middlesex County Career Edu-
cation Coordinating Council for Career Ed, which is made up of edu-
cators K-12 and postsecondary, and representatives of business and
industry.
In addition, I'll be representing the school districts of Middlesex
County.
I'm going to summarize my written testimony that was submitted
on four points:
The education-work connection, being No. 1-local school districts
do report that CETA students are developing positive attitudes about
themselves and work.
CETA must insist that all programs provide: An orientation coun-
seling component, which school districts have found successful in de-
veloping positive attitudes and assisting in the transition from school
to work; antidropout programs to start in September or during the
summer, not midyear as has been experienced.
Concerning employers: employers should be thoroughly screened be-
fore being selected as a training station; and also an orientation pro-
gram for all employers and supervisors-those working directly with
youth-should be an integral part of every CETA program.
PAGENO="0070"
66
This comment was made by a number of preceding speakers, that
private enterprise should become more involved in CETA programs.
The year-round programs which the private sector could implement,
would provide more realistic work experiences in lieu of the summer-
time work programs that municipalities, such as parks and play-
grounds, sponsor.
The CETA programs must be designed to teach skills, attitudes,
et cetera-not merely a means to earn money. A classroom or academic
component would assist students in the transition from school to
work-I cite the SPEDY program which I visited the other day at
the Perth Amboy Vocational School, which is highly structured in
terms of attendance, getting paid for being present, certainly follow-
ing the rules and regulations of the school, and the skills that a.re
being taught in the classrooms.
Many community people have identified all CETA programs as
welfare programs. I think a better public relations program is needed
to offset this perception.
Unfortunately, there have been difficulties with some of the adult
CETA programs, especially in the area of the hard-core unemployed.
This makes it more d:ifficult getting support for the Youth Employ-
ment Act component cf the program.
The next area is CETA and its relationship to schools.
Most school districts report that during the past 2 years CETA
has improved its management, is more cooperative with local districts,
and more responsive to local needs. There still remains some concerns
and problems:
The short timeframe for submitting proposals; the amount of
paperwork and redundant reports-I think you heard this earlier-
the last-minute kind of time lines that come in, where reports have to
be submitted, proposals have to be submitted-it's not just true of
CETA; it's true of many other Federal and State programs. In terms
of priorities, it becomes difficult to get these in.
CETA guidelines for operating programs have changed after pro-
grams had begun. I think this has to be corrected.
In many cases, CETA personnel are not aware of the school district
operation, how the school district operates. There were some problems
in terms of course credit during the school year, during summer work,
summer school. A solution to this is more frequent meetings with the
CETA personnel and the school personnel. There have been too
infrequent meetings.
The third area: How to measure success.
School districts report that the success of CETA is measured by:
One, the number of students remaining in school; two, improved
attendance; three, better self-images; and four, positive attitudes
about the school, jobs, and careers.
Students h~ive moved from CETA programs to better jobs. Money is
not the only benefit the students gain.
CETA's evaluation process lacks sophistication. I would suggest
that CETA meet with the school districts and the division of vocation-
al education to cooperatively develop program evaluation criteria.
All school districts should analyze their potential for involvement
in proiects( funded under CETA, particularly those districts with
capability for vocational and career ed, including the county vocational
schools.
PAGENO="0071"
67
The County Career Ed Coordinating Council has no input into the
distribution of CETA funding in Middlesex County. We do have input
in the Federal vocational funding; in fact, the County Coordinating
Council approves the funding matrix for Middlesex County.
CETA and the Coordinating Council should review all vocational
and career ed funding sources. I believe in Monmouth County they are
art integral part of the CETA funding.
And, last, the bilingual programs for youths.
A cooperative program must be initiated by the New Jersey Depart-
ment of Ed, Vocational Division, and CETA to develop better lines of
communication with the Hispanic communities, and identify those
factors which discourage persons with limited English speaking ability
from participating in vocational education.
Thank you.
[The prepared statement of Mr. Boyle follows:]
PAGENO="0072"
68
MIDDLESEX COUNTY COORDINATING COUNCIL
FOR CAREER EDUCATION
97 Bayard Street
New Brunswick, New Jersey 08901
246-6490
Charles A. Boyle, Chairman
Superintendent of Schools
Edison, New Jersey July 28, 1978
Mr. Harrison A. Williams, Jr.
N.J., Chairman
United States Senate
Corrrnittee on Human Resources
Washington, D.C. 20510
Dear Mr. Williams:
The Coordinating Council for Career and Vocational Education in Middlesex
County is mast interested in cooperating and working with Middlesex County CETA
in developing meaningful programs for disadvantaged youths and adults. The
Coordinating Council is solely responsible for creating, organizing, imple-
menting, prcrmting and evaluating county-wide, coordinated K to post-secondary
systems of vocational and career developnEnt education in Middlesex County.
Mashers of the Coordinating Council are appointed by the Corrmissioner of Edu-
cation with the approval of the State Board of Education. Basic representation
on the Council includes psople frcmi business, industry and education.
I am bringing this information to your attention to emphasize the point
that coordination, cooperation and collaboration between existing county agen-
cies and services can result in viable vocational-career programs for Middle-
sex County youths and adults. Without this cooperation and collaboration,
those citizens in need of assistnace will not receive the vocational and career
education services they are entitled to, and, needless to say, taxpayers will
not be getting the mast for their tax dollars.
I have been asked to address several issues related to CETA in Middlesex
County. I ~nuld like to note that the following comments represent the feelings
of the Coordinating Counc:Ll and local school districts:
The first issue: The Education-Work Connection
The local school districts note that their CETA students are
developing positive attitudes about themselves and work. This is
accomplished through field trips, shadow programs and on-the-j oh
experiences.
When the schools provide an orientation and counseling pro-
gram, it develops positive attitudes in studonts and helps in the
transition from school to work. CETA mist insist that all pro-
LTarIis have these components.
PAGENO="0073"
69
Mr. Williams -2- July 28, 1978
CETA programs at the 12th grade have a positive impact upon
student attitudes and self-image.
CETA programs at the 9, 10, and 11th grades are successful
in getting students to return to school for the following school
year because students realize they can enroll in CETA programs
and earn umney.
CETA and school districts should not attempt to initiate
an anti-dropout program in February; it is too late. We mist
begin an anti-dropout program in Septeuber or during the sisrrrer.
Employers should be screened before they are selected as
a training station.
Private enterprise Irust becona mare involved in CETA pro-
grams. During the simmer nunths municipal training stations
are used, but during the school year these jobs are not avail-
able---parks. When private industry is used, the sana openings
carry over to the school year. More emphasis trust be placed on
real work experiences for students in areas related to their
career goals.
Stricter student salary guidelines trust be established.
Students who were employed prior to July 1, 1978, receive
$2.65 per hour, and students imployed after July 1 are re-
ceiving $2.80 per hour.
All CETA programs trust be designed to teach skills, atti-
tudes, etc., and not irarely a maane to earn maney. The school
districts enphasized that all career and vocational programs
trust lead to maxinum employrrent opportunities.
An orientation program for all employers should be an
integral part of every CETA program.
Several districts reported that there should be an academic
carponent to all CETA programs. The classroom activity helps
the students in the transition from school to verk and in
acquiring the attitudinal skills essential for success on the
job.
Many corrirunity people have identified all CETA programs
as welfare programs. A better public relations program can
overcorre sons of this negative feeling. Local school dis-
tricts should prorrute their success stories in the local and
county newspapers.
PAGENO="0074"
70
Mr, Williams -3- July 28, 1978
More emphasis should be placed on real work.
The second issue: CETA snd Its Relationship to Schools
Host school districts report that during the past two years
ZCA has improved its rnanagenmnt, is ranre cooperative with the
local districts, oure responsive to local needs, and their
staff people are able to provide ranre professional assistance.
One district reported that their high school (ETA programs
were nore successful than their adult CETA programs.
The districts reported that the students like the CETA
programs, and the Boards of Education, for the oust part, were
willing to cooperate and provide programs.
School districts are complaining that they do not have
enough tina to prepare and submit proposals. They are suggesting
that additional preparation tiom will result in better planned
proposals and programs.
Several districts reported that the CETA guidelines for
operating their programs were changed after the program had begun.
Several districts suggested that CETA planners oust spend
mare tims with school personnel.
CETA and the school districts oust onet and discuss the
feasibility in initiating courses for credit. The school dis-
tricts are apprehensive about initiating make-up siarnor courses
for credit. This would, in their opinion, encourage students to
intentionally fail a course so that he or she could enroll in
a suimxor shcool make-up course and be paid for attending school.
A number of districts reported that CETA does not ccxrpre-
hend hes school districts operate. For exanple, CETA would
like students to receive academic credits for participation in
a program, but they fail to realize that it may take several
months or longer for the curriculum cormnittee, administration,
and Board of Education to approve the CETA course and credits.
This course must then be submitted to the Departrrmnt of Education
for approval.
One district indicated that there are many eligible students
not currently being served by (ETA programs.
A few districts repnrted that it is difficult to contact CETA
people directly via the telephone. All of the districts ccrnplained
about the paper work and redundant reports. Other districts noted
that too many of the ad-hoc advisory noetings were "rubber stamp"
noetings.
PAGENO="0075"
71
Mr. Williams -4- July 28, 1978
The third issue: How to Measure Success
Several districts indicated that the success of CETA is
naasured by the nurrber of students rasaining in school, improved
attendance, better self-images and positive attitudes about
school, jobs, and careers. Many other districts reported that
their CETA programs reduced the dropout rate, reduced vandalism,
and they had fewer crimas in their connunities. CETA, one dis-
trict noted, enabled their students to earn noney. With maney
in their pockets, they did not have to turn to crirre as a source
of cash.
School districts also reported that many students roved
from the CETA program to better jobs. Money is not the only
benefit students gain.
Several schools reported that if the goal of the CETA program
is to only provide ouney, this will not be a meaningful experience
for students. On the other hand, if the program is designed to
assist students gain knowledge about jobs, learn how to get and
keep a job, and develop the attitudes essential for success, it
will be a good program.
The majority of the districts contacted indicated that CETA' s
evaluation process lacked sophistication. The districts also
noted that it was important for CETA representatives to meet with
the educational representatives and jointly establish evaluation
criteria.
One district indicated that CETA evaluation personnel were
mure interested in budgets, bookkeeping, total expenditure of
funde, rather then students.
CETA and the school districts must expand their public re-
lations efforts and share their success stories with their citizens.
It is also inportant for CETA to keep the local school districts
informed of successful nodel programs in the county as well as
other areas of the state and country.
It would seen feasible for representatives from the Division
of Vocational Education and representatives from CETA to cooper-
atively develop program evaluation criteria.
It is also important that the local school districts receive
copies of all program evaluations. Without these evaluations,
the local districts cannot measure their acccxrplishments.
PAGENO="0076"
72
Mr. William -5- July 28, 1978
It is incumbent upon all Middlesex County school districts
to analyze their potential for involvmasnt in proj ects funded
under (ETA, particularly those districts with capability in
vocational and career education, and act according to their
findings. It is important for educators to take the lead in
derronstrating their capabilities to iirpact upon youth uneaploy-
ment.
The Coordinating Council has no input into the distribution
of (ETA funding in the County. It would seen feasible for CETA
and the Coordinating Council to review all vocational and career
funding sources and develop a system for guaranteeing that
uonies coming into the county for career and vocational progran's
will be expended wisely. We trust get the meat for every voca-
tional dollar we spend.
The fourth issue: ~j~4~gugl Prograna for Youths
Middlesex County trust expand its outreach services for those
people in need of bilingual, vocational and career education pro-
gratis. A óooperative program trust be initiated by the New Jersey
L~partrrent of Education, Division of Vocational Education, and
(ETA to develop better lines of correunication with the Hispanic
coimunities and identify those factors which discourage persons
with limited English speaking ability fran participating in
vocational education.
The school districts indicate that the CETA bilingual pro-
grains are successful and should, where feasible, be expanded
to involve mere studenta.
The need etists to establish a better network of guidance
services for adults. We oust not only direct them into training
prograns, but also provide follow-through and follow-up services.
The Comprehensive Enploynent Training Act (CETA) was designed to have a major
inpact upon the disadvantaged population. Middlesex County's CETA progress can
have a positive impact upon career development and vocational progress through
cooperation with existing agencies and delivery systerrs in the County. It is
important that all agencies focus their energies and resources there they can
have the greatest effect.
Very truly yours,
/~ ~-
~. -
a~iarles A. Boyle Y
CAB/JC/dk
PAGENO="0077"
73
The CHAIRMAN. Thank you very much, Mr. Boyle.
Let's go right to Dean Tyrrell, and then we'll see if there isn't a little
time. You can appreciate that we've had to condense, and I appreciate
the efficiency with which you have presented your very helpful
statement.
Your full statement, of course, will be part; of our record.
Mr. BOYLE. Yes.
The CHAIRMAN. Dean Tyrrell.
Mr. TYRRELL. Senator Williams and committee staff: My name is
David Harrison Tyrrell-I thought I'd throw that in for you, Sena-
tor-dean of the division of engineering technologies at Middlesex
County College in Edison, N.J.
Since 1966, Middlesex County College has served the community
through a wide variety of degree and nondegree programs, preparing
both full- and part-time students for immediate employment and for
transfer to 4-year institutions.
Over two-thirds of our full-time. enrollment of over 5,500 is in occu-
pationally-oriented programs in business, allied health, science, and
engineering technologies.
We also serve a broad diversity of nontraditional community and
career needs: Bilingual and minority groups, women, senior citizens,
and business and industry.
Recently, a large portion of the energy of our division of commu-
nity services has been occupied by initiating a number of CETA title
I, III, and VI programs. In responding to the needs of our target
population, Middlesex has always been active, in career-education lead-
ership both nationally and on a statewide level. Thus, we welcome the
opportunity to share our insights into the ways in which postsecond-
ary institutions can help to reduce youth unemployment.
In view of the time constraints imposed on your committee, I will
confine my testimony to three areas of concern about which we feel
especially qualified to make recommendations: Our role as a linkage
between education and work, our relationship with CETA, and the
special problems of bilingual youth.
We see as a major role of the postsecondary institution the bridging
of the gap between unemployed youth and the world of work. Em-
ployers need and demand workers with the right combination of ~kills,
attitudes and knowledge.
We at Middlesex and at other community colleges have developed a
wide variety of programs that demonstrate how this bridge must be
built. In so doing, we have Over the past decade learned a great deal
about the problems that youth face in addressing the world of work.
Many of our enrollees in programs for the disadvantaged and uw
employed simply do not know that financial aid, academic remediation,
~hort-term training programs leading to immediate employment, and
job-related academic counseling are available to them. Many are not
aware that, in many employment areas, a previous history of discrim-
ination has changed to a positive or at least a nondiscriminatory atti-
tude, particularly true, incidentally, in the high-technology areas.
There is also a high correlation between low academic achievement
and youth unemployment. Many young people with low reading and
mathematics `skill levels simply feel embarrassed at having these defi-
ciencies exposed in a job-seeking situation, and rule themselves out of
the employment market.
PAGENO="0078"
74
Therefore, we would like to see a mechanism inserted into CETA
and other future similar training programs that will mandate academic
support for job-skill trainees so as to maximize the participants'
chances for success. This academic support can best be provided by
community colleges and other postsecondary institutions geared to an
open-admissions policy and a diverse nontraditional clientele.
In most instances, community colleges have already in place a huge
capital investment in learning resources for nontraditional students,
resources that can be shared by CETA participants at relatively little
cost.
Many of us in higher education view our relationship with CETA
as one that has great potential for remedying structural unemploy-
ment. At our own institution, we are crrently conducting CETA-spon-
sored job training, academic skills, public service, and youth-oriented
projects serving hundreds of participants.
Our relationship with our prime sponsor is a healthy and a coopera-
tive one, but we have observed that such a relationship, under the cur-
rent law, depends to a great extent on local leadership ~rather than on
its being legislatively codified and assured.
We therefore join the American Association of Community and
Junior Colleges and the National Advisory Council on Vocational
Education in their recommendation that:
Prime sponsors must be fully involved in the national commitment to provide
the structurally unemployed with the training and assistance they need to move
into the mainstream, and up the economic ladder. CETA must provide more than
merely temporary subsistence and maintenance.
We also find, in general, a need for greater flexibility with regard to
programatic and budgetary regulations to permit institutions with
proven capabilities in recruitment, counseling, training, placement, and
job development to assume responsibility for all segments of a title I
or title III programs.
A second problem area is caused by the 12-month funding cycle
and the frequent changes in regulations impacting on our programs.
We are therefore recommending a number of legislative and proced-
ural improvements in our written testimony.
Briefly, they are:
First. State and local planning councils need to be strengthened to
give them their own staff, independent of the prime sponsor staff.
Second. Greater training and technical assistance for sponsor per-
sonnel.
Third. More coordination within the States among agencies working
in manpower planning, training, placement, et cetera.
Fourth. Reduction of paperwork and reporting requirements-men-
tioned several times-in testimony, previously.
Fifth. Legislation should require greater prime sponsor emphasis
on training.
Sixth. Permit more flexibility in allowing remedial work with the
hard-core unemployed.
Seventh. A major focus on the disadvantaged.
Eighth. A mechanism for improving program stability by providing
a high priority for refunding demonstrably successful training pro-
grams.
PAGENO="0079"
75
We have problems in getting employees to staff programs who are
well qualified, who continually are threatened with having their jobs
terminated in a very short period of time.
In terms of bilingual youth and unemployment: Middlesex County
College shares with many other institutions a significant subpopula-
tion that is bilingual, in our case Hispanics of predominantly Puerto
Rican and Cuban origin.
Our experience in serving young Hispanics through CETA, VEA
and other programs suggest that a comprehensive approach by one
agency is more effective than the fragmentation of responsibility for
ending youth unemployment. By this we mean that unemployment
among bilingual youths has several causative factors that should be
attacked in a concerted fashion.
These youths are often characterized by:
First. The need for immediate income because they are poor.
Two. The need for specific marketable skills.
Three. The need for positive role models to offset the impact of the
negative models in poverty-stricken environments.
Four. The need for job-related basic educational skills in reading,
language, and computation.
Five. The need for a coherent, experientially oriented contact with
the opportunities open in the world of work, rather than menial, dead-
end make-work jobs.
Six. The need for a structured development of positive attitudes to.
ward themselves and their involvement in the employment mainstream.
Seven. The need for development of organizational and self-dis-
cipline skills demanded by the employment market; and
Eight. The need for specific knowledge about educational and train-
ing options, including the financing of these options, so that they can
actualize their aspirations-that means "get a job" I think.
And we also urge that greater national attention be given to not only
evaluation, but also to dissemination of the results of programs such
as ours, so that replication is facilitated and potential failures are
minimized.
Not only are ineffective programs wasteful of taxpayers' money
and damaging to the credibility of all agencies involved, but their
negative effects on the human beings who share in those failures as
participants are too great to be permitted. This is especially important
in the area of bilingual programs, since their target population faces a
multiplicity of handicaps that have thus far resisted definite solutions.
We appreciate the opportunity to comment on the relationship of
the community college to the efforts of the Federal Government to pro-
vide employment and training opportunities for youth. Middlesex
County College stands ready to be of any further assistance to the
committee or the staff, if called upon.
[The prepared statement of Mr. Tyrrell follows:]
PAGENO="0080"
76
Testimony
on
Youth Unemployment and the Impact of
Federal Programs on Efforts to Provide
Employment and Training Opportunities for Youth
By
David H. Tyrrell
Dean, Division of Engineering Technologies
Middlesex County College
Edison, New Jersey
to the
Senate Committee on Human Resources
Perth Aniboy, New Jersey
July 31, 1978
PAGENO="0081"
77
Mr. Chairman and Members of the Committee:
My name is David H. Tyrrell, Dean of the Division of
Engineering Technologies at Middlesex County College in
Edison, New Jersey. Since 1966, Middlesex County College
has served the community through a wide variety of degree
and non-degree programs, preparing both full and part-time
~ students for immediate employment/and for transfer to four-
year institutions. Over two-thirds of our full-time enrollment
of over 5,500 is in occupationally-oriented programs in business,
allied health, science, and engineering technologies. We also
serve a broad diversity of non-traditional community and career
needs: bilingual and minority groups, women, senior citizens,
and business and industry. Recently, a large portion of the
energy of our Division of Community Services has been occupied
by initiating a number of CETA Title I, III, and VI programs.
In responding to the needs of our target population, Middlesex
has always been active in career-education leadership both
nationally and on a statewide level. Thus we welcome the oppor-
tunity to share our insights into the ways in which postsecondary
institutions can help to reduce youth unemployment.
In view of the time constraints imposed on your Committee,
I will confine my testimony to three areas of concern about which
we feel especially qualified to make recommendations: our role
as a linkage between education and work, our relationship with
CETA, and the special problems of bilingual youth.
36-289 0 - 79 - 6
PAGENO="0082"
78
-2-
Strengthening the Linkage BetWeen Education and Work
We see as a major role of the postsecondary institution
the bridging of the gap between unemployed youth and the
world of work. To bridge that gap requires the community
college and its postsecondary partners to reach out to em-
ployers as well as the unemployed in creating o~a conditions
for getting young people in the career mainstream.
Employers, however, are not philanthropists. They need -
and demand - workers with the right combination of skills,
attitudes, and knowledge. The tale of national trends toward
higher - skilled entry - level jobs and the elimination of
low - skill positions need not be recounted here. In bridging
the gap between out-of-work youth and jobs, postsecondary insti-
tutions need support so they can establish a postive link in
the minds of these young people between education, work and
a better life.
In our experience as a community - oriented college, we
have developed several pilot programs for reinforcing this
link. We have conducted, for example, career camps for dis-
advantaged teenagers that combine self-assessment and job
conseling with "hands-on" laboratory experiences that let
them sample various career fields.
Our success is attributable to the opportunity we give
yourgsters to experience the realities of a given career -
not the myths or preconceptions that may rule it or them out
of their range of possibilities, but the positive and negative
aspects of daily contact with a job.
PAGENO="0083"
79
-3-
We have, over the past decade, learned a great deal about
the problems that youthful participants face in addressing the
world of work, problems that our programs and services attempt
to address. Many of our enrOllees in programs for the disadvan-
taged and unemployed simply do not know that financial aid,
academic remediation, short-term training programs leading to
immediate employment, and job-related academic counseling are
available to them. Many are not aware that, in many employment
areas, a previous history of discrimination has changed to a
positive or at least a non-discriminatory attitude.
There is also a high correlation between low academic
achievment and youth unemployment. Many young people with low
reading and mathematics skill levels simply feel embarrassed at
having these deficiencies exposed in a job-seeking situation,
and rule themselves out of the employment market. Therefore,
we would like to see a mechanism inserted into future CETA
regulations that will mandate academic support for job-skill
trainees so as to maximize participants' chances for success
in training programs. This academic support can best be done
by community colleges and other postsecondary institutions
geared to an open-admissions policy and a diverse non-traditional
clientele. In most instances, community colleges have already
in place a huge capital investment in learning resources for
non-traditional students, resources that can be shared by CETA
participants at relatively little cost.
PAGENO="0084"
80
-4-
CETA and the Colleges
Many of us in higher education view our relationship with
CETA as one that has great potential for remedying structural
unemployment. At our own institution, CETA Title I, III, and
VI Programs were last year the largest single grant source
category for us. We are currently conducting job-training,
academic-skills, public-service, and youth-oriented projects
serving hundreds of participants. Our relationship with our
prime sponsor is a healthy and cooperative one, but we have
observed that such a relationship, under the current law,
depends to a great extent on local leadership rather than on its
being legislatively codified and assured.
We therefore join the American Association of Community
and Junior Colleges and the National Advisory Council and
the National Advisory Council on Vocational Edubation in their
recommendation that:
Prime sponsors must be fully involved in the national
commitment to provide the structurally unemployed with
the training and assistance they need to move into the
mainstream, and up the economic ladder. CETA must pro-
vide more than merely temporary subsistance and maintenance.
In order to honor this commitment, the prime sponsor's
plan should spell out in detail how the training program
is coordinated with existing, on-going programs and re-
sources at the local and state levels, such as vocational
education, community colleges, state employment service,
and other activities. Requirements for coordinated planning,
similar to the requirements for the coordination of vocational
education and CETA contained in the Vocational Education Act,
should be included in the new CETA legislation.
Our experience, confirmed by contact with other institutions,
has also revealed that other provisions of the existing legisla-
tions mitigate against maximal participation by postsecondary
institutions. We find, in general, a need for greater flexibility
PAGENO="0085"
81
-5-
with regard to programmatic and budgetary regulations to permit
institutions with proven capabilities in recruitment, counseling,
training, placement, and job development to assume responsibility
for all segments of a Title I or Title III program. A second
problem area is caused by the 12-month funding cycle and the
frequent change in regulations impacting on our programs. We
therefore recommend the following legislative and procedural
improvements:
I.. A strengthening of state and local manpower planning
councils to insure a more uniformly effective involvement
in CETA planning, implementation, and review. One approach
would be to give the planning councils their own staff,
independent from the prime sponsor, as suggested by the AACJC.
2. Greater technical assistance and training for prime
sponsor personnel to help bring about better understanding
of the complexities of employment and training, and DOL
regulations.
3. Within the states, more coordination among agencies is
needed so that agencies working toward related goals are
able to work together productively rather than impose differing
requirements on the same groups. To some extent the law al-
ready requires this of the State Manpower Services Council.
In addition, the 1976 amendments to the Vocational Education
Act require CETA membership on the State Vocational Education
Advisory Council. However, it does not seem that the man-
dated goal of a consistent, integrated and coordinated approach"
has been reached.
4. Clearly, the Department of Labor must take a very close
look at CETA reporting requirements. Information needs
should be rationalized and codified to eliminate all unnec-
essary repetition, as well as reporting of unneeded information.
It could be expected that DOL technical assistance to prime
sponsors could be helpful in this regard as well.
5. CETA legislation should be amended to require greater
prime sponsor emphasis on training and education. As sug-
gested by a comprehensive AACJC survey, a set-aside or
requirement that a certain minimum percentage of prime sponsor
funds be allocated to training is one approach.
6. In addition, a legislative change is needed to permit
more than 12 months training experience, at least for CETA
clients whose basic reading and mathematics skills are so
poor that their long-run hopes in the job market are dim.
For such persons remedial educatior,plus job behavior skills,
may be necessary for meaningful entry into the job market.
PAGENO="0086"
82
-6--
7. Somewhat greater flexibility in CETA job training
arrangements would seem helpful. A more effective
CETA focus on the disadvantaged could be achieved
through 1. allowing more training time when needed,
including basic skills; 2. administrative allowances
to institutions providing training, which would be
used for counseling and related services; 3. flexible
schedules, including time off, to encourage the phycho-
logical transition to the world of work; 4. more effective
placement, including arrangements whereby training
institutions undertake the task if they are clearly
qualified to do so.
8. A mechanism for assuring high priority for refunding
of demonstrably successful training programs should be
considered. Often, much unreimbursed commitment in staff
effort and facilities is invested by participating instit-
utions, as well as the establishing of credibility with
employers and disadvantaged communities. In order to
retain committed and qualified CETA-related staff at our
colleges, we need to be better able to do medium-range
planning. A "contract year" independent of the fiscal
year would help in this regard.
PAGENO="0087"
83
-7-
Bilingual Youth and Unemployment
Middlesex County College shares with many other institutions
a significant sub-population that is bilingual, in our case His-
panics of predominantly Puerto Rican and Cuban origin. Our
experience in serving young Hispanics through CETA, VEA, and
other programs suggests that a comprehensive approach ~y one
agency is more effective than the fragmentation of responsibility
for ending youth unemployment. By this we mean that unemployment
among bilingual youths has several causative factors that should
be attacked in a concerted fashion. These youths are often
characterized by:
1. The need for immediate income because they are poor.
2. The need for specific marketable skills.
3. The need for positive role models to offset the
impact of the negative models in poverty-stricken
environments.
4. The need for job-related basic educational skills in
reading, language, computation.
5. The need for a coherent, experientially-oriented contact
with the opportunities open in the world of work, rather
than menial, dead-end makework jobs.
6. The need for a structured development of positive
attitudes toward themselves and their involvement in
the employment mainstream.
7. The need for development of organizational and self-
discipline skills demanded by the employment market.
8. The need for specific knowledge about educational
PAGENO="0088"
84
-8-
and training options, including the financing of these
options, so that they can actualize their aspirations.
We also urge that greater national attention be given to
not only to evaluation but also to dissemination of the results
of programs such as ours, so that replication is facilitated
and potential failures are minimized. Not only are ineffective
programs wasteful of taxpayers' money and damaging to the cred-
ibility of all agencies involved, but their negative effects on
the human beings who share in those failures as participants are
too great to be permitted. This is especially important in the
area of bilingual programs, since their target population faces
a multiplicity of handicaps that have thus far resisted definite
solutions.
PAGENO="0089"
85
The CHAIRMAN. Excellent. Under the youth employment and train-
ing program of the new Youth Act, 22 percent of the prime sponsor's
funds are earmarked for expenditure only under an agreement with
local education agencies-elementary and secondary public schools.
What kinds of services and other activities are you being afforded
under those agreements? Can you tell me what the experience has been,
Mr. Boyle?
Mr. BOYLE. I mentioned two. The vocational schools are involved
with the SPEDY summer program and medical secretaries program.
A number of school districts, about nine districts, are involved this
summer with the SPEDY program.
I would indicate that because of the time lines-about a year ago--
and the priorities-New Jersey, as you know, has been going through
an overhaul of its school system, commonly known as "thorough and
efficient education"-and in terms of priorities, I think, and possibly
communication problems, school districts did not opt to go into an
extensive program with CETA.
However, in the few that have, there have been positive results after
the shakedown, so to speak.
Mr. TYRRELL. The community college has a number of CETA pro-
grams. We have training programs in five different areas-three of
them happen to be in my division, are the ones I'm most familiar with.
One is a small systems computer operator, another is a machine
operator.
We have programs in the secretarial area, as distribution clerks
and accounting clerks.
These programs are moving forward very effectively and have very
good placement records.
In addition, we're running this summer an interesting program
called SITT (summer in the technologies), which provides informa-
tion and hand-on experiences for students or for disadvantaged youth
in the area, in helping them select careers and career opportunities
that are realistic for them, that are of interest to them; and in over-
coming barriers that they face and in changing their attitudes toward
many of these technically oriented areas as being too difficult or closed
to them because of their race, et cetera.
The CHAIRMAN. Could you explain to me what we've done to you
with this act that went into effect in October, which doesn't mention
community colleges?
Mr. TYRRELL. It's been a problem, Senator.
The `CHAIRMAN. And then, how it develops and with whom you
develop your community college effort under title IV programs-
they're title IV programs, right?
Mr. BOYLE. We have a working relationship now-are you talking
about the secondary schools in Middlesex `County with the commu-
nity college?
The CHAIRMAN. I am confused about what attitude you have with
our new program under the Youth Employment `and Training Act,
YETP. You can't pronounce the acronym, but that's it.
Twenty-two percent of a prime sponsor's funds are earmarked for
expenditure only under agreement with local education agencies-
that's you, Mr. Boyle, right?
Mr. BOYLE. Right.
PAGENO="0090"
86
The CHAIRMAN. And-
Mr. TYRRELL. Is it my understanding that excludes Community
colleges?
The CHAIRMAN. The provision doesn't mention the community
colleges.
That's why I'm wondering what have we done here, whether we've
shut out an opportunity. -
Mr. TYRRELL. Well, certainly, we have a multimillion-dollar plant,
and we have a great deal of experience with all sorts of nontraditional
kinds of clientele. We have a proven track record that's respected by
industry, by all local business and industry-in terms, not only of
training individuals for immediate employment-over two-thirds of
our students are in those kinds of programs-but also in placement,
in counseling, in recruitment.
And being excluded from those programs by not being in the defini-
tion of an LEA is a significant difficulty for us, as far as we're con-
cerned; and I think it's a real difficulty in making use of our facilities
and services for CETA.
The CHAIRMAN. So, where you are involved is directly with the
prime sponsor under the four titles of CETA; is that right?
Mr. TYRRELL. That's correct.
The CHAIRMAN. Then, there's a missing link, in your judgment.
Do you share that view, Mr. Boyle?
Mr. BOYLE. Yes. I'm not competing with the community college;
I'm speaking for the school districts.
But I would emphasize that due to the lateness of the act and the
implementation of the program-I mentioned in my opening remarks
following Mayor Otlowski that we have an outstanding vocational
school system in Middesex County, a good track record in terms of
job placement, about 98 percent.
Mr. Tyiuu~. That's right.
Mr. BOYLE. And yet, we have approximately 100 students since Jan-
uary in the vocational training program.
I think it was because of the time lines last fall, plus the commum-
cations problems which I cited in my testimony.
The comprehensive high schools, K-12 districts, they have not
opted for these programs-again, because of priorities and a commu-
nications problem.
I did mention that school districts who have this capability should
pursue this area. So, we're not-I think we've been satisfied, both of
us-we're not competing with the county colleges.
Mr. TYRRELL. One of the interesting things about this county is the
level of cooperation between the county college, the vocational educa-
tion portion, in terms of vocational schools, and the public school sys-
tems. I think our career education coordinating council is evidence
of this, and also we have joint programs with the vocational school
sy~em and the county college.
Mr. BOYLE. Dean Tyrrell is a member of the county coordinating
council.
The CHAIRMAN. Is there a possibility here that, because of these
limitations, and `also the limitation under law, that part of that money
that could be available is not being used?
Mr. TYRRELL. Possibly, in certain cases, with the facilities that are
sittmg there, the capital investment that is already there, they're not
PAGENO="0091"
87
being used as efficiently and effectively as they m~ight be, if you ox-
elude the agencies like the county college in that definition.
The CHAIRMAN. Now, here you have a situation where you are
geared up to bring educational opportunity into the area. A lot of
the comprehensive schools do not feel geared up.
Mr.~ B0mE. With the exception* of the vocational school.
The CHAIRMAN. Vocational, yes.
I will bring this to the attention of the original sponsor of this 22-
percent provision for local schools, Senator Javits. I will bring that
to his attention.
Maybe we can make that earmarking more realistic.
Mr. TYRRELL. This is particularly important now at a time when
college enrollments are being flattened out, so that the space is begin-
ning to become available, and it will become more available probably
in the future.
The CHAIRMAN. Yes.
Mr. TYRRELL. The duplication of our facilities and services just
doesn't make sense, from an economic point of view.
The CHAIRMAN. You have your physical location in the community
colleges close to-
Mr. BoYLE. The center.
The CHAIRMAN [continuing]. One of the most dynamic commercial
industrial centers of not only our State but even the Nation.
Mr. TYRRELL. Yes, sir.
The CHAIRMAN. You have on campus a lot of job opportunities.
Mr. TYRELL. We certainly do. We have employers coming in two
times a year to recruit our students on campus.
The CHAIRMAN. Yes.
Mr. TYRRELL. Our job placement is excellent, and industry, you
know, looks to us for employees.
The CHAIRMAN. Let me just ask one final question.
We were talking about the transportation problem for job oppor-
tunities, realistic job opportunities, which is severe with industry
going out, way out, on the interstates.
Here we have a different situation. And, yet, you probably need an
automobile to get to your college.
Mr. TYRRELL. Well, to a certain extent, we do have some public
transportation. We do have buses from Perth Amboy, I believe from
Woodbridge, and from New Brunswick, on a fairly regular schedule
into the college; in addition to our automobile transportation, which
is certainly the majority.
The CHAIRMAN. Well, this gives me a lot to take back and feed
into our legislative operation. I think perhaps we will see some im-
provements.
Mr. TYRRELL. I might make one quir'k aside. George Otlowski, who
was sitting here, when he was Freeholder director, was probably one
of the people who was primarily responsible for the starting of Mid-
dlesex County College. It was a pleasure to follow him.
The CHAIRMAN. It was a pleasure to address the director-I re-
member it with the greatest pleasure-a fabulous institution.
Mr. TYRRELL. Thank you.
The CHAIRMAN. We lamented the departure of the arsenal, but in
retrospect-
Mr. TYRRELL. It was a good move.
PAGENO="0092"
88
The CHAIRMAN [continuing]. It was a great move, yes.
Now, as anchor and pull-it-all-together, those who have the most
intimate and personal experience; our youth program enrollees: Char-
lene Sims, Cathy Jasmin, George Cruz, Zeromae Glenn, Deborah
Oglesby, and Gil Fox. We know that this panel of participants hav~
been part of the audience until now, and now you're front and center.
I wish the cameras were still here, but they've gone on. It would be a
good story, a good pictorial study for television-maybe they caught
you, though. The camera roamed, I see.
Now, shall we start with those who are closest to the microphone
here? In your own words you can give us your view of what your ex-
perience has been under the program, and what we're talking about
here today.
George Cruz, you've got the microphone right in front of you. Pull
up close to that microphone and just tell us what it's all about.
Mr. CRUZ. I don't want to talk. Let somebody talk first and I'll talk
after.
The CHAIRMAN. All right. You want to come second or third?
Mr. CRUZ. Yes.
The CHAIRMAN. All right.
Who would like to volunteer to just give us in your own words in a
very relaxed way what being a part of this program has meant. Maybe
you want to say what you're doing in the program, what you hope to
acquire in the program, what your ambitions are after your training
is over, or your activity is over.
How about you, Gil? You like to speak up. You were kind enough
to ask me "how's the wife and the kids?" when we met today.
STATEMENT OP GIL FOX, CETA SUMMER PROGRAM, OLD BRIDGE,
ACCOMPANIED BY CATHY 3ASMIN, CETA TRAINEE, NEW BRUNS-
WICK; GEORGE CRUZ,. YC4JIP PROFECT, NEW BRUNSWICK;
DEBORAH OGLESBY, CETA TRAINEE, NEW BRUNSWICK; CHAR-
LENE SIMS, MEMBER, YOUTH ADVISORY COUNCIL; AND ZORO-
MAE GLENN, CETA TRAINEE, SOMERVILLE, A PANEL
Mr. Fox. Yes; I'm an Old Bridge resident for 8 years, and I've been
working for CETA this year-not last year-but 2 years previous,
also.
CETA to me has always been a great help when employment has be-
come a problem, and it is in our community because we are mostly a
suburban and rural district, and thus we aren't very centralized as far
as business is concerned.
Mostly my work this year has been very good, because I'm working
with the engineering department in our township, doing architectural
drawings-which is something I can actually write down in my
transcript and which I can use for college, as far as that is concerned.
In this way, I believe CETA is helping me a lot. As far as my future,
I plan to go to college after I graduate from high school. I will be a
senior this coming September.
As far as I'm concerned, CETA has fulfilled its requirements on a
Federal level thus far, and it's really done a good job as far as employ-
ing young people in our community.
PAGENO="0093"
89
The CHAIRMAN. Your employment then is through the municipality
in Old Bridge?
Mr. Fox. Yes.
The CHAIRMAN. And you're in the city hail there?
Mr. Fox. Yes; I'm in the municipal center.
The `CHAIRMAN. And what are your ambitions now? What year are
you in school-your senior year?
Mr. Fox. I'll be a senior this September.
The CHAIRMAN. And your ambitions are what?
Mr. Fox. I plan to be some sort of architect or commercial de-
signer-in art or commercial art-free-lance art.
The CHAIRMAN. This is your second summer?
Mr. Fox. This is actually my third.
The CHAIRMAN. Third?
Mr. Fox. Third year working for CETA.
The CHAiRMAN. Did you have that ambition when you started
under the CETA program 3 years ago?
Mr. Fox. Yes; I had, although a position wasn't available for me
to actually acquire some training in that area.
The 2 previous years I had been doing maintenance in the schools;
you know, maintaining lawns, and the interior of the school, making
sure everything's presentable in the form of desks, and the building
as a whole.
The CHAIRMAN. And then you advised the director of the program
that you would like to move into this other area of drafting?
Mr. Fox. Yes. They always had given us an opportunity-if you
had any special talents or skills-for review so they could put us in
something that might help us in the future. Positions aren't always
available which will prove useful, or that we can actually write down
for credit, gain some knowledge, and put it to use in the future.
The CHAIRMAN. How many are in the program at Old Bridge?
Mr. Fox. I don't know the actual number, although there-
The CHAIRMAN. Take a guess.
Mr. Fox. I'd estimate at least 200, possibly.
The CHAIRMAN. And you know them? You talk with them?
Mr. Fox. I do. My sisters also-my two sisters are also employed.
The CHAIRMAN. What do you interpret-how do you evaluate their
feeling about this opportunity that they're receiving under CETA,
summer employment?
Mr. Fox. Well, everyone is really glad to have an opportunity to
keep busy for the summer, and also to have some money-because it's
very important as students to have some money for use in school, and
socially in the summer.
And, all in all, everyone really appreciates the opportunity to be
employed in this respect.
The CHAIRMAN. What are your wages?
Mr. Fox. Minimum wage, I believe-it's $2.65 or $2.80 an hour.
The CHAIRMAN. Excellent. Thank you very much, Gil.
We'll go from Mr. to Ms.-Cathy Jasmin. Where are you located,
Cathy?
Ms. JASMIN. New Brunswick. I'm at the youth incentive program
at the Urban League.
The CHAIRMAN. I see. Your sponsor, then, is the Urban League;
and your employment is, where? At their center?
PAGENO="0094"
90
Ms. JAsMIN. Yes.
The CHAIRMAN. What kind of activity are you doing, and what are
your ambitions?
Ms. JA5MIN. Well, the program assists participants in entering-like
for us to make decisions as to what occupational field we want to enter
as a career, in job placement, and they have work counseling and selec-
tive opportunities to research into interviewing processing, dealing
with people individually, and setting up appointments for interviews.
The CHAIRMAN. Then you work in the office and you help other
people.
Is this a full-time activity for you?
Ms. JAsMIN. No; I'm a trainee. I'm in the program, and it's called
the youth incentive program.
The CHAIRMAN. How about your academic education? Are you
finished? Have you graduated?
Ms. JASMIN. Yes, I have; from New Brunswick High School.
The CHAIRMAN. When did you graduate?
Ms. JASMIN. 1975.
The CHAIRMAN. And how long have you been at the Urban League
program?
Ms. JA5MIN. Well, I just started this year.
The CHAIRMAN. What did you do after high school, from 1975 until
you entered this program?
Ms. JA5MIN. I was in a program in high school and other times I
was working.
The CHAIRMAN. And what are your career ambitions?
Ms. JASMIN. Secretarial.
The CHAIRMAN. And is this activity at the Urban League helpmg
you-
Ms. JASMIN. Yes.
The CHAIRMAN [continuing]. In this direction?
Ms. JASMIN. Yes, they're helping me-more personally with myself,
you know, talking with the other people, interviewing processing, and
as an individual, so they help prepare ourselves for going out for
interviews, and doing research for occupations, so we can really see
what we want to do in the future.
The CHAIRMAN. Do you have the skill training there at the Urban
`League, secretarial skills, typing and dictation?
Ms. JAsMIN. I don't have dictation or shorthand, but other than that
I have the basic secretarial skills.
The CHAIRMAN. How long will you be in this training program,
Cathy?
Ms. JASMIN. Well, right now, until I find a job at the end of the year.
The CHAIRMAN. You entered when?
Ms. JASMIN. This year.
The CHAIRMAN. I mean when this year?
Ms. JASMIN. Well, 2 months, 3 months ago.
The CHAIRMAN. Do you feel prepared now to go into these jobs?
Ms. JASMIN. Yes, I do.
The CHAIRMAN. And you're anxious to?
Ms. JASMIN. Yes,I am.
The CHAIRMAN. You know who really runs the company, those who
are called the secretaries. Good luck to you.
Now, are you ready, George?
PAGENO="0095"
91
Where do you live, George?
Mr. CRUZ. Carteret.
The CHAIRMAN. You're working and training in New Brunswick?
Mr. CRtJZ. Yes.
The CHAIRMAN. A lot of things are happening in New Brunswick.
Mr. CRUZ. Yes. I see a lot of things are happening.
The CHAIRMAN. Are you glad the Route 18 question was finally
solved and settled?
Mr. CRUZ. Yeah.
The CHAIRMAN. You know, that was a long struggle to establish the
missing link. You had Route 18 and Route 18 and no bridge. You know,
it promises great development and new enterprise and new activity,
new jobs, great new things for New Brunswick. What is your job?
What do you want to be?
Mr. CRuz. I want to be a carpenter.
The CHAIRMAN. An honored profession, one of the first, as you will
recall.
Mr. CRUZ. See, I had no skills, and I needed more training. I want
to keep going for more training like this. I want to keep a job like
this, you know, because I like the job.
I'm getting a little bit of training, but it ain't going to be for long.
The CHAIRMAN. How long have you been in this program, George?
Mr. CRUZ. About 3~/2 months.
The CHAIRMAN. And how long is it-you're in part of the rebirth
of Brunswick renovation project, right?
Mr. CRUZ. Yeah.
The CHAIRMAN. House renovation?
Mr. CRIIZ. Yeah.
The CHAIRMAN. Working on-
Mr. CRIJZ. Houses.
The CHAIRMAN. Rehabilitating houses?
Mr. CRtTZ. Yeah.
The CHAIRMAN. Great.
And how long can you stay in this work and training?
Mr. CRUZ. Well, I would like to stay longer, but the program isn't
going to last that long, because it's only going to last until
September 30.
`The CHAIRMAN. When?
Mr. CRUZ. September 30. So, you know, I still need more training,
mostly to learn more skills.
The CHAIRMAN. While the program provides for a year of what
you're doing, evidently the program you're on you feel is going to
end in September; is that right?
Mr. CRUZ. Yeah.
TheCHAIRMAN. All right.
Mr. CRUZ. You know, I want to keep going because I want to get
more experience on the job. I got a little bit of experience, but I still
need more training and more skills to work, and I want to learn more
about it, you know.
The CHAIRMAN. How old are you, George?
Mr. CRUZ. Seventeen.
The CHAIRMAN. And in school, what is your high school situation?
Mr. CRIIZ. I dropped out when I was in eighth grade. I graduated
PAGENO="0096"
92
from eighth grade, I went to high school. From there, I didn't go no
more, you know, so I was supposed to be going to another school to be
trained. I didn't get to that school to be trained, so now I just came to
this program. In this program, I learned more. I've been training
really good.
You know, I want to keep training myself. I want to get more
training, more experience on the job-people's houses, home repairs,
things like that. I'd like to train myself. You know, I want to keep on
doing it.
The CHAIRMAN. Is there any opportunity now for you to finish
your high school education?
Mr. CRUZ. Yeah. We're taking YCCIP for credit toward a diploma,
you know. But still, it isn't long enough. You got to have more time
because, really, you know, we don't have too much classes.
The CHAIRMAN. All right.
Now, just give me a typical day when you're learning both the
occupation, the trade of carpentry, and also doing some of the work
for your certificate of high school.
Mr. CRUZ. Yeah, both.
The CHAIRMAN. You're doing them together.
When do you get to school on a typical day when you go into the
classroom to work?
Mr. CRtTZ. I have my classroom in the afternoon, 2 hours for math,
2 hours for English, that's about it. The other days, you know, we go
out to work on people's houses, for home repairs in the day, you know,
like that.
The CHAIRMAN. Where do you go for your 2 hours of schoolroom
work?
Mr. CR~Z. MCEOC, inside the MCEOC in New Brunswick. We have
the classes there.
The CHAIRMAN. Not at a regular school, but at the project?
Mr. CRUZ. Yeah.
The CHAIRMAN. I get it. Do you like the track you're on now?
Mr. CRUZ. Yeah, I like it. I want to-
The CHAIRMAN. Do you feel some real hope that you'll be able to
work and have a better future in a job?
Mr. CRUZ. Yeah. I just want to keep going for the job because I
like the job, myself, you know-it's one of my best jobs.
The CHAIRMAN. I see. Excellent. Now, looking ahead to September
when this particular project will be finished, what are you looking
for to continue? You say you want more training. Where are you
looking to see if there is more training?
Mr. CRUZ. I don't know.
The CHAIRMAN. You don't know?
Mr. CRUZ. Unless I keep on with it, stay with the same people-
you know, but if I stop once then, I can't find another job the same
as it was, you know.
The CHAIRMAN. Have you talked to any of your supervisors about
the problem you see when September comes for you?
Mr. CRUZ. Yeah, I talked to my counselor.
The CHAIRMAN. Has he been in a position to help you and give you
some good advice?
Mr. CRUZ. He gave me advice.
PAGENO="0097"
93
The CHAIRMAN. What?
Mr. CRtIZ. He told me I still need more training. That's what he
told me, you know. Without more training-you know, I only had it
for a couple of weeks, that was it.
The CHAIRMAN. So you don't know of any place you can go for more
training after September?
Mr. CRUZ. No.
The CHAIRMAN. I would suggest that within the occupation and
trade of carpentry there are apprentice programs and I would rec-
ommend that you suggest to your counselor that maybe together you
should look at that. There are apprentice programs.
Mr. CRIJZ. Yeah.
The CHAIRMAN. Have you heard that word, "apprentice"?
Mr. CRt~Z. No.
The CHAIRMAN. You have not.
We better have someone give you a call. We'll do that. There's
John Molinari behind the pipe; he knows. He's a part of our Senate
staff operation in New Jersey.
You got that, John?
The apprentice program is basically run through the union-are
you opposed to unions? [No response.]
The answer is "No." [Laughter.]
But, really, I'd like to follow this one all the way through, because
quite frankly, if my house were tumbling down, I'd like to have you
there putting it back together ag~iin. You look good to me, very good.
Now, we will take volunteers. Deborah?
The CHAIRMAN. Now, Deborah, where do you live? Let me see-you
live in New Brunswick, too.
Ms OGLESBY. Yes.
The CHAIRMAN. And are you through high school?
Ms OGLESBY. Yes.
The CHAIRMAN. When did you graduate?
Ms. OGLESBY. Last year, 1977, from New Brunswick High.
The CHAIRMAN. And what did you do after you graduated from
high school?
Ms. OGLESBY. I was looking for a job, but I couldn't seem to find
one until I came to MCEOC. and they found one for me.
The CHAIRMAN. How did you learn of the Middlesex County Eco-
nomic Opportunity Corp.? Did they find you or did you find them?
Ms. OGLESBY. I found them.
The CHAIRMAN. How long have you been under part of their
activity?
Ms. OGLESBY. Four months.
The CHAIRMAN. And you're at one of the hospitals?
Ms. OGLESBY. Yes. I'm working at St. Peter's Medical Center, and
I work in food service, and I would like to become a dietitian.
The CHAIRMAN. Very good. Let's not talk too much about food; I'm
very hungry right now, and you'll make it more painful.
But you like this activity? Does it give you a lot of enthusiasm, this
kind of activity and work?
Ms. OGLESBY. Yes; it does.
The CHAIRMAN. All right.
How long will you be at the hospital under the sponsorship of the
MCEOC program?
36-289 0 - 79 - 7
PAGENO="0098"
94
Ms. OGLESBY. Well, after 6 months, they're planning on hiring me
back.
The CnAIi~iAN. They are.
Ms OGLESBY. Yes.
The CHAIRMAN. Oh, I see. Who's going to hire you back full time,
the hospital?
Ms. OGLESBY. Yes; the hospital.
The CHAIRMAN. Oh, I see.
In other words, your employer right now is the Middlesex County
Economic Opportunity Corp?
Ms. OGLESBY. Yes.
The CHAIRMAN. And your work is under assignment to the hospital?
Ms. OGLESBY. Yes.
The CHAIRMAN. After 6 months you feel that the hospital will be
your employer?
Ms. OGLE5BY. Yes.
The CHAIRMAN. Well, that is the hope that people like you will find
this opportunity for regular employment, continuing employment,
that you will like. If you like it, you'll do all right.
Ms. OGLESBY. Yes.
The CHAIRMAN. Excellent. I'm glad you came over.
I want to thank you all, by the way, for coming here today. Those
of us who believe in this effort like to know how it's working. We de-
veloped these programs and like to see how they're working, and
you're good evidence that our hopes are being realized. You're realiz-
ing our hopes for the program.
Now, Charlene, will you tell us your experience?
Ms. SIMS. My name is Charlene Sims.
The CHAIRMAN. Where are you from, Charlene?
Ms. SIMS. New Brunswick.
The CHAIRMAN. I see.
Ms. SIMS. I work for the New Brunswick Board of Education, spon-
sored by CETA. My title is administrative assistant.
I have just completed my senior year in high school, and I want to
continue my education. I will go to college this fall to major in business
administration.
The CHAIRMAN. You've been admitted to what college?
Ms. SIMS. Morgan.
The CHAIRMAN. And how long have you been part of the Advisory
Council?
Ms. SIMS. A year.
The CHAIRMAN. Do you think it's important to have someone, one
of the youths, on the Advisory Council and giving advice and making
observations?
Ms. SIMS. I learned a lot. I see how they communicate together, how
they accept proposals, and what they have to go through to be ac-
cepted. I met a lot of interesting people and went to a lot of interesting
places. They took us on some tours of some very interesting places.
The CHAIRMAN. What are your career ambitions, Charlene?
Ms. SIMS. I want to work for a big company, and I want to be a
business administrator. I work for the YETP office, which gives out
the jobs to the different youths. I am also a YETP participant.
The CHAIRMAN. Excellent.
PAGENO="0099"
95
Now, Zoromae, would you tell us. about yourself and where you're a
participant in the CETA prograni2 You're a neighbor of mine-I
didn't know that until today.
Ms. GLENN. I'm a neighbor of yours?
The CHAIRMAN. You live in the same county, Somerville. I'm just a
few miles away in Bedminster.
Ms. GLENN. I wish I did, but I'm from New Brunswick.
The CHAIRMAN. Oh, I see. You're there by day, but go back to New
Brunswick for residence; is that it?
Ms. GLENN. No.
The CHAIRMAN. Why have we got you-
Ms. GLENN. I'm in New Brunswick.
The CHAIRMAN. We've got you in Somerville.
Ms. GLENN. I'm from New Brunswick.
The CHAIRMAN. Well, that's our loss. I'll tell you, it's a nice county,
too. But, I found Middlesex County more hospitable to me-you see,
I'm a politician.
You all employ me. More people want me to be employed in this job
in Middlesex than in Somerset. [Laughter.]
All right. Now that we have relocated you, what is your activity?
Ms. GLENN. I'm a trainee at OIC, and I'm a-there's no special work,
but I'm doing reports now.
The CHAIRMAN. I see. What are the subjects?
Ms. GLENN. The subjects there that they teach?
The CHAIRMAN. That do you research?
Ms. GLENN. Well, I'm looking for jobs for the other students who
don't have jobs, like ads in the paper. We look up jobs and get our em-
ployment specialist, and he telephones the people to get interviews for
the students and myself.
The CHAIRMAN. Have you been successful in locating employment
for people?
Ms. GLENN. Yes.
The CHAIRMAN. Very good.
How long have you been at OIC?
~Ms. GLENN. Since February.
The CHAIRMAN. And how long will you remain there?
Ms. GLENN. Until September, and if it stays open longer.
The CHAIRMAN. And then where? After that.
Ms. GLENN. I would like to stay there. I love it there.
The CHAIRMAN. What will be your ambition if you don't stay at
OIC?
Ms. `GLENN. Oh, I guess I'll go on to college, and I'll enter criminal
justice.
The CHAIRMAN. Have you applied?
Ms. GLENN. Yes; I have applied to colleges, and I've been accepted
to several colleges, but I haven't, you know, made my choice which
one I `want.
The CHAIRMAN. Criminal justice?
Ms. GLENN. Yes. .
The CHAIRMAN. Is this training you're in now,' in your work ac-
tivity, a help?
Ms GLENN Yes, very much
PAGENO="0100"
96
The CHAIRMAN. There are many areas in criminal justice; have
you isolated any in'particular that you would like to do?
Ms. GLENN. Well, I was thinking about working with juveniles.
The work I'm doing now, we're covering office work, and such things
as that. A polide officer, Donnie Bowman, from New Brunswick, he
came and talked to me about it, explaining t.he things that I would
have to do.
You know, he told me that some of the work I'm doing now will help.
The CHAIRMAN. Very good. Excellent.
I met a young lady, she's the assistant prosecutor in Burlington
County, and juvenile justice is her work.
It is very, very important to have wise counsel and sensitivity with
these young people. People who are having problems might find that
there are things they can do to finally eliminate problems in their
lives, right?
MS. GLENN. Right.
The CHAIRMAN. Is that what you want to do, be part of the problem-
solving for people?
Ms. GLENN. Well, if I can, I'll try to change the world just a little
at .a time.
The CHAIRMAN. Very good.
Now, everybody has spoken, and it's 12:15. I told you that you
would be able to leave at quarter t.o 12.
You don't mind that extra half-hour, do you? It's overtime. When
you get back to work, say you're entitled to overtime. [Laughter.]
Cathy?
Ms. JASMIN. I have one thing to say about the program. The
program helped me in preparing myself for interviews with l)eOple.
But, I think that they should have a job placement service, for the
people that are in the program, to help them find jobs; and day care
centers for those who have children and `have problems finding baby-
sitters to enter the program.
And they should have some kind of educational benefits within the
program.
The CHAIRMAN. Education is an important part of the program.
We've discovered that with George. He would like to have more,
both occupational `training and classroom training that you need, and
that you `haven't received.
Mr. `CRnZ. Right.
Ms. JASMIN. I also think they need job placement service.
The CHAIRMAN. Job placement service?
Ms. JASMIN. Yes, because here in the program-they prepare you,
in the program that I'm into-first they help you select what career
you want to get into, then they help you with processing-like prepar-
ing yourself for interviews and research-but, after that, looking for
a job, it's not very easy with my qualifications that I have.
S6, like, I'm looking on my own-and they're helping me a little
but I haven't gotten any satisfaction from that.
The CHAIRMAN. Thank you very, very much.
This concludes our hearing, which has been very, very productive
and instructive. We will include in the record at this point additional
material submitted by persons absent.
[The following was subsequently supplied for the record:]
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OFFICE OF TilE MAYOR
J0IrN J. CASSIDY
1MAINSTI~EET C~14MENTS BY WOODBRIDGE TOWNSHIP
W009nnrnoE. N. 3.07095 MAYOR JOHN J. CASSIDY BEFORE THE
HUMAN RESOURCES COMMITTEE OF U.S.
SENATOR HARRISON WILLIAMS
Monday July 31, 1978
9:00 A.M.
Perth Amboy, New Jersey - City Hall
Mr. Chairman, my name is John Szilagyi. I am the
Assistant Business Administrator for the Township of Woodbridge
in the State of New Jersey. I am here to present the prepared
~tatement of John J. Cassidy, Mayor of Woodbridge Township who
regretfully is unable to appear in person due to prior
committments. Following is Mayor Cassidys prepared statement:
Almost 300 economically disadvantaged Woodbridge Township
youngsters between the ages of 14 and 21 are gainfully employed
this summer thanks to the federally funded 1978 Summer Program
for Economically Disadvantaged youths (SPEDY).
Since 1966, this current program and the former federally
funded Neighborhood Youth Corps program has provided job
opportunities for over 5,000 economically disadvantaged youths
in the Township of Woodbridge.
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nLatement by Mayor John J. Cassidy Page 2
The community service jobs under this program are
coordinated to provide participating youths with meaningful
supervised training, opportunities to earn income needed
for post high school study and for work experience n~cessary
for regular employment after graduation.
Job assignments include secretarial duties in various
township administrative offices, library assistants, mail
room and office services, Police Department traffic control
signs, park counseling, public building and grounds maintenance.
Through the guidance and interest of job site supervisors
and counselors, enrollees are afforded the opportunity not
bnly to learn marketable job skills, but also self respect and
a sense of belonging that are musts for good citzenship.
A goal of my Mayors Office is to give the youth of
Woodbridge Township continuing encouragement and assistance in
developing job skills for future employment. The success of the
Woodbridge Township portion of the SPEDY program is evident.
I strongly urge the continuation of this youth corps
program.
Respectfully submitted,
John J. Cassidy,
Mayor of Woodbridge
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.7--
a `1!
( EN TRAL NEW JERSEY
~
Rev. Leon Sullivan
Founder -- Notional (201) 525-1988-8-9
Cha-rmon of the Board
OIC.s of America
William J. Brown Jr. ~ Paterson St.
Chairman Board of Directors raw nranswlC, -,LJ
CNJ 0 I C. Geraldine N. Harvey
July 28, 1 978 Evocative Director
Senator harrison iilliaras
U. S. Senate Suilding
Uashington, D.C.
Dear Senator hil1ie~s:
I am arriting this letter to you, Senator \tilliams
to express my feelings on the CitJA proCran operated
by Central New Jersey Opportuninies Industrialization
Center.
I taos esked by my Instructor Coordinator to answer
some questions i'ogarolng ray feelings abput the
prograra. D.I.C. has opened my eyes to both the
political and social problens facing youth today
I hope that the information that I enclosed is
helpful, and I hope that programs such as YElP
be funded to aid those of us who would not other-
wise receive this kind of support
I look formard with anticipation to meeting you
on Monday, July 31, 1978.
Sincerely yours,
Zorcmae rlefln
"Serving Middlesex, Somerset and Morris Counties"
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When I first arrived at 0.1. C., I was very di saprointed in the
place, I expected a much better building, not the basement of
a Church. But the day I was hired it was kind of different.
There were very few people. They kept saying, `We're a family!"
As time wenton more students came in, and it really did be-
come a big family. We didn't have all the equipment we need-
ed, but Karen Griffiths, a determined teecher, trovided her
students with hooks and other things that were needed. I
Jc~ew K~.ren was a good teacher, because she gave me and che
others special help which was, and is needed. We all came to
0.I.C. for help because we were high school drop-outs or the
school we were attending was not fulfilling our needs. 0.I.C.
is an opportunity. It fulfilled my needs and expanded my
brain a lot. I really want to thank Karen for her patience
and understanding with all of the students. Most of the students
and I are working hard trying to get our G~ by the end of the
program. Karen has shown us our work proving our reading, math,
etc... was below average when we started the program. Some
of the trainees who have left the program have good jobs be--
cause their reading and math levels were raised in the program.
The trainees also learn what they need to 1~ow that will be
helpful to them in the future because the YETP staff gives
their time and knowledge to help us.
The reason I droped out of school was I couldn't take orders.
I also had family problems, which did not help me any. I
knew my education was at stake but there was no reason for
me to stay if I wasn't going to learn. Most people think
there is no use for a high school drop-out which is true.
But when you try1l feel you can make it. 0.I.C. helped me
thru a lot. There is a special help at 0.I.C., and without
it some of the students and myself would be back on the
streets. Mr. Carroll Thomas, the Instructor Coordinator,
has become my friend, and has helped me many times. Mr.
Thomas, as far as I can see is a dedicated man, which is
needed. A lot of students and myself appreciate him as a
boss and a friend.
Mr. James Wilson, as my Employment Specialist, has been very
helpful. He has also come to my aid mamy times. James got
me a job at Chicopee, which I thought I was ready for, but I
got fired because of my tardiness and one (1) day's absence
chich wasn't excusable. My point is preparation and help is
really given by 0.I.C.
There have been times when the staff has helped myself and
others thru our ups and do~ms and it's really hard to look
at yourself and not know who you are and where you are going
in life. Most of the students are able to face half of the
side of reality. A lot more time is needed and would be
appreciated.
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When I was in school I had a lot of problems getting it together
There was always a lack of help or the teachers never responded
to my needs. There were many students in the sane situation
as myself, and all of this led to skipping school, skipping
classes which would lead to suspension. It was all because
of a lack of help. There was never any aid really. Every-
thing was on the students.
All of the students here at O.I.C. get special attention. The
special counseling helps the students and staff to get to
know each other. I feel that this program has done a lot for
me end others. The lessons v:hich ere being taught are "Self-
awareness" and "Self-development'. The lessons are reall
needed, because half of the students don't know who they
really are and what they want out of life. I have been in
this program since the beginning and I needed my brain to ex-
pand. Slowly but surely I learned things old and new!
The kind of job I would have liked was being a Police Woman.
The njmy dreams would have been fulfilled. Now that I am at
O.I.C., it is helping me towards my goal - office and clerical
work, talking and meeting different people. O.I.C. really
doesn't have a lack of anything. The only real problem that
I can think of would be if the program closses down. The -
students will he in the streets again selling dope, stealing,
mugging etc... The students are really getting it together
now because of O.I.C.
O.I.C. hasn't been successful in day care services and medical
services, which are sorely needed. ~~oth~s need son-cone to
_i cnaldi 1 30 11~t c~n Th cl c
~Tot ho eheont lot uatchino thoir children. So~e cf the
elsa used classes because they can't see good enough
to read their hooks. Some students also have hearing problems,
or need medical attention, there should be some help for them.
PAGENO="0106"
102
These are some of the answere I received from other students
when I asked what they would do if 0.1.0. clcsed up.
C00~
I have two children, if 0.1,0. closes up I'll be unemployed
and I will be nowhere. I will have to start over again.
There is not enough money to buy clothes for the 1dds or
food. It goes mostly to rent~ I am very satisfied with 0.1.0.
I enjoy worldng here. I get a good education and without the
program I won't get my GED.
B~LINDA:
Living with parents is great but they need my help with the
bills. I try to help as best I can, but without a G~D or
an education I can not get a good job. And I can not get a
job without 0.1.0. helping me.
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103
Perth Amboy Board of Education S.P E D.Y
1978
The P.A. SPEDY program is the largest in Middlesex County
with 550 participants. Participants are working at 60 sites, doing
a variety of jobs. Beginning with an archeological dig and going into
a vocational exploration program, participants are learining and exper-
iencing a multitude of jobs and performing a variety of tasks.
Participants jobs include teacher aides, secretarial functions,
maintenance, food service, recreation, day care workers, mechanics,
nurses aides, x-ray aides, and printers. The participants at the
archeological dig are not only searching for artifacts but studying
the history and culture of Perth Amboy and New Jersey. A group of
bilingual students are undergoing an intensive reading and language
program to remediate their language handicap. Eighty 14 and 15 year
old participants are enrolled in a vocational exploration program at
Middlesex County Vocational & Technical High School. They are exploring
the career field of auto mechanics, carpentry. sheetmetal, machine shop,
and electricity for five hours per day. Other participants are working
at day care centes and another group is running a summer c~mp program for
6-10 year olds. This is only a sampling of the kinds of tasks and
experiences in which the participants are involved.
Another facet of S.P.E.D.Y. is our in-school conponent students
must come to classroom sessions for ~ hours per week. The classes
include art, industrial arts, clerical, and physical education. The
Focus of the class sessions is enrichment and remediation. Students
select the area of study and continue in the classroom for eight session.
During the class sessions a "Family Planning Orientation" is being
conducted to nake students aware of the sex education program conducted
at Perth Arthov Hospital. A three hour labor market orientation is
planned for pirticipants to review job hunting techniques. The
participants will address such concerns as "Who Gets Hired", "Problems
on the Jobs," and what personnel departments look for ~n job applicants.
Our. staff of seven senior counselors, four instructors, and 14
college students who serve as junior counselors coordinate' activities
and programs for this massive operation. Working with site supervisor
to plan work schedules and training activities the senior counselors
function es an intregal cog in this planning process Another major
role of the senior counselors is to serve as ambudsmen, to preserve
order and peace within the program. The staff also works with the
Juvenile Aid Bureau and the Special Services Department of the Public
Schools to handle individual cases of students with special problems.
PAGENO="0108"
104
One factor that is usually overlooked in evaluating a program
is the amount of work performed by the participants and the rapport
that is established in the performance of their duties. Perth Arrboy
is a better place because of the efforts of the SPEDY participants.
The town is cleaner and many essential maintenance programs have
been instituted. Thousands of younger children have been helped in
the areas of recreation, education, and day care. The good will
fostered by the close relationships of adult and teenagers. employer
and employee, friend and confident will break down the barriers in
bridging the gap from school to the world of work.
It is difficult to discribe the day to day operation of~-a
program such as S.P.E.D.Y. I would invite interested people to
spend a day with us to learn first hand the problems. the successes,
the heart-aches, and triumphs which we meet in the operation of
the program.
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Perth Amboy Board. of Education
Youth Employment & Training Program Y.E.T.P.
Middlesex County CETA contracted five Y.E.T.P. throughout the
county on Feb. 1. 1979. Perth Amboy was granted the:largest program,.
initially 100 slots but later increased to 125 after other contractors
did not meet their hiring goals. The Y~'E.T.P. is designed to employ
in, school economically disadvantaged youth between the ages to 16
through 19 with the major effort being to prepare the participants
to be job ready to enter the private labor market Perth Amboy has
33 job sites with jobs in the clerical, maintenance, and ~ocial
services areas. Participants were paid for a 15 hour week which
included 1" hours of work. two hours of classroom training, and one
hour of guidance and counseling. Classroom training is conducted
by certified teachers whose primary goal was to develope entry level
skills in the area of the students choice Instructor~ devoted time
to maintaining and improving skills needed so the participants
could better perform their jobs
The guidance sessions were the heart of the program Pre~ and ooat'
testing on the Crites Test and diagnostic testing on E T S `5 Decision
Making and Employability Skills Program serve as criteria for program
planning.. the project director and four counselors have developed
programs in v~1'ues clarification, drugs. marriage & Family counselinqs.
money management, and eersonal counseling to better premare the
participants for the woald of work.
The Y.E.T.P. is a year round program with this year's contract
ending on Seot ~9.l978 As of Aug l,197P a total of 1'9 earticipants
have been enrolled in the program. -* Three students have dropeed out
of school, one olE these three entering U.S. Army, Man'i have obtained
part time jo"s in the private sector through our job elacement ~ervioe.
Several of our graduating seniorF have o1tained full time employment
or are now preparing to enter college `~ecause of our counseling and
guidance services, Evaluation is a continuous process as we strive to
improve our program, We ~A~ave tried innovative methods in seeking
to help stuaents, CETA funds have given us the opportunity to imp1em~nt
our ideas. and to help disadvantaged youth stay in school.
Without~CETA funds this progacin could never have 1~een implemented.
Robert S. Estok
Job Placement Coordinator, CETA youth
programs
Perth .Amboy Public Schools
Perth Amboy, New Jersey.
PAGENO="0110"
~S
United States
cf America
~on~r~sion~i 1~rtor~
t1
PROCEEDINGS AND DEBATES OF THE 95 CONGRESS, SECOND SESSION
Vol. 124 WASHINGTON, TUESDAY, AUGUST 5,1978 No~ 123
106
EXEMPLARY YOUTH EMPLOYMENT
PROGRAMS
o Mr. WILLIAMS. Mr. President, fig-
ures released by the Bureau of Labor
Statistics for the month of July showed
a disheartening rise in unemployment
among teenagers from 14.2 to le.3 per-
cent during the month. At this level, it
is more than 2½ times the rate of the
labor force as a whole. Among minority
teenagers, unemployorsent in July per-
sisted at a tragic 37 percent, and it
ranged up to more than 50- percent
among minority young women and res-
idents 0f both sexes in poverty neigh-
borhoods.
The scope and severity of youth unem-
ployment is a blight on the Nation's so-.
cial and economic well-being. But more
important, in my view, are the personal
consequences for young Ameriesns in
terms of opportunities lost, human Po-
tential wasted, and the prospects of liv-
lug in deprivation and discouragement.
The Senate Committee on Human Re-
sources met in Perth Amboy, N.J.,
on July 31, to examine the human
toil that these figures represent. At the
hearing we received frdnk assessments
of Federal eur.playment and training
programs from the county' prime spon-
sor, local educators, leaders of commu-
nity based organizations, program
agents, and youth themselves. They ex-
plored major policy questions relsting
to youth unemployment and the degree
to which the CETA programs, including
the nosy youth programs under the
Youth Employment and Demonstration
Projects Act (YEDPA), are operating at
the local level to provide answers.
The Senate should be alert to our
findings when it considers S. 2570. to re-
vise and extend the programs author-
lzecl tinder the Comprehensive Employ-
ment and Training Act of 1073 (CETA).
First, many youth cannot, on their
own, surmount the employment ob-
stacles that they face. Targeted and
concerted assistance is needed. In many
areas, Federal assistance for employ-
ment and training programs has pro-
vided lisa initiative for local officials to
coordinate education and work pro-
grams and to help youth make the tran-
sition from school to full-time employ-
ment. CETA programs have provided
funclanoental work skills, including pcoi-
the work attitudes and self-discipline to
overcome the employer prejudice against
youth for their lack of experience.
Senate ` ` "1.
Unfortunately minority youth who to work, Ken put.hirn.setf through school
I is kills and- `experience continue ts and earned his teaching credentials. Ken
`t' al barrier of diserimina- used- those credentials to open the door
tion. Fortunately, they understand the of opportunity, through which he had
words of the Reverend Jesse Jackson that struggled, for o,her disadvantaged youth,
"to make it" you have to be better than The SPEDY program less enabled Ken
"just as good." The CETA programs have to pursue his mission.
b to provide a channel to the job The medel wore site in his program is
skills necessary to translate youtbs' real f~Otg~g~~
Second, most youth cannot be tracked clear, and the basic fundamentals of
on a path toward superior achievement g ~ ,` ` d ` -
unless employment opportunities, and Ken emphasizes the insportance of
the skill training and personal develop- group identity and of learning to work
nsent for getting and holding them, are together. The young workers eat togeth-
made available. Witnessafter wiinessre- en, discuss values and attitudes, and
ported to the committee that youth re' report on the program's progress as a
soond well whenthey are given a chance whole. Then the group breaks dams Into
to prove themselves and when the ground separate work units with individual
rules of the world of work are explicit, assigmnento,
Third, we were told that the oppor- As youth gain more experience in the
tunitics provided under YEDPA make a program, Ken assigns them special re
real difference. Emphasis on training and sponsibitities. Youth group leaders are in
personal development enables disadvan- charge of ..a unit's output and overall
taged youth to enhance their chances for work performance.
job placement and advancement. But, Too classroom phase of this employ-
the committce was warned against seg- ment exploration program corers per-
tstoting performance standards and dc' sansl grooming, personal finances, Inn-
gibihity criteria that would encourage guara ot work, safety techniques, read-
"creaming" the most qualified youth ,to tga"und arithmetic, lox d.tsgrtminstioec
flit the programs, short-changing the di.)- applications snd résumés, and a host of
advantaged youth who need it mast. other considerations that are important
In connection with the hearing, ~m~' ~ employability.
spected youth job and training projects The results of the program are sink-
at A. Chester Redahaw School in New ing. Not only have the youth gained
Brunswick. Two model programs are run marketable job skills, but also they have
at Otedshaw under the CETA canopy- developed personal strength. with their
one a Youth Community Conservation csmznitnsent to self-improvement and
and Improvement Project (YCCIP), em- initiative. Ken feels that the program
ploying youtis to paint, sand, apackle, rounds out their educational experience
and refurbish scarred classrooms; and and provides the xr.omentiuoi of self-do-
the other a Summer Program for velopinentneected for future employment
Economically Disadvantaged Youth success
(SPEDY), employing 00 youths in the As I moved from work statIon to work
seventh and eighth grades to paint and -station, the youth came forward io.intro-
varnish school furniture, construct pro- dxcv themselves and their coworkers
tective screens for windows, paint sriihout cccxiii;. I saw pride replacing
murals, install tile ±tccm in the school, hositzncv. These young people -irene con-
and learn administrative and clerical vinreci ihst they s-crc bring given a
skills. Work tennis also fix and refinish clsar.cz and that they were doing a good
toys for the kindergarten classes, neassu- jisi and User were determined to make
facture nameplates and rn cards, and the scoot of it,
provide general maintenance of the iifr. Carl Frank supervises the group of
facilities. yociog people, enrolled in the YCCIP
Describing the unique features of this program, rho are renovating the school,
model SPEDY program requires an un- its classrooms, halts, auditorium, and of-
derolanding of its ositotanding director, flee space. The participants are learning
Ken Woof,. He empathizes with his un- the skills of painting, plastering, and re-
employed youth. Unemployed himself in l~m,iin~ svlth experience that they can
the late Ci's, Ken found cork as a so- transfer to permanent employment sifter
esrity side during the civil disturbances the progress's term.
in New lironswick in 10(8. With a chance Because of their efforts, Hedohaw
:4~~~1 8, 1978 -
CONGRESSIONAL RECORD - SENATE
S 1z885
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