To the Congress of the United States:
The blight of poverty requires priority attention. It engages our hearts and challenges our intelligence. It cannot and will not be treated lightly or indifferently, or without the most searching examination of how best to marshal the resources available to the Federal Government for combatting it.
At my direction, the Urban Affairs Council has been conducting an intensive study of the nation's anti-poverty programs, of the way the anti-poverty effort is organized and administered, and of ways in which it might be made more effective.
That study is continuing. However, I can now announce a number of steps I intend to take, as well as spelling out some of the considerations that will guide my future recommendations.
The Economic Opportunity Act of 1964 is now scheduled to expire on June 30, 1970. The present authorization for appropriations for the Office of Economic Opportunity runs only until June 30, 1969.
I will ask Congress that this authorization for appropriations be extended for another year. Prior to the end of the Fiscal Year, I will send Congress a comprehensive proposal for the future of the poverty program, including recommendations for revising and extending the Act itself beyond its scheduled 1970 expiration.
How the work begun by OEO can best be carried forward is a subject on which many views deserve to be heard--both from within Congress, and among those many others who are interested or affected, including especially the poor themselves. By sending my proposals well before the Act's 1970 expiration, I intend to provide time for full debate and discussion.
In the maze of anti-poverty efforts, precedents are weak and knowledge uncertain. These past years of increasing Federal involvement have begun to make clear how vast is the range of what we do not yet know, and how fragile are projections based on partial understanding. But we have learned some lessons about what works and what does not. The changes I propose will be based on those lessons and those discoveries, and rooted in a determination to press ahead with anti-poverty efforts even though individual experiments have ended in disappointment.
From the experience of OEO, we have learned the value of having in the Federal Government an agency whose special concern is the poor. We have learned the need for flexibility, responsiveness, and continuing innovation. We have learned the need for management effectiveness. Even those most thoroughly committed to the goals of the anti-poverty effort recognize now that much that has been tried has not worked.
The OEO has been a valuable fount of ideas and enthusiasm, but it has suffered from a confusion of roles.
OEO's greatest value is as an initiating agency--devising new programs to help the poor, and serving as an "incubator" for these programs during their initial, experimental phases. One of my aims is to free OEO itself to perform these functions more effectively, by providing for a greater concentration of its energies on its innovative role.
Last year, Congress directed that special studies be made by the Executive Branch of whether Head Start and the Job Corps should continue to be administered directly by OEO, or whether responsibility should be otherwise assigned.
Section 309 of the Vocational Education Amendments of 1968 provides:
"The President shall make a special study of whether the responsibility for administering the Head Start program established under the Economic Opportunity Act of 1964 should continue to be vested in the Director of the Office of Economic Opportunity, should be transferred to another agency of the Government, or should be delegated to another such agency pursuant to the provisions of section 602(d) of the aforementioned Economic Opportunity Act of 1964, and shall submit the findings of this study to the Congress not later than March 1, 1969."
I have today submitted this study to the Congress. Meanwhile, under the Executive authority provided by the Economic Opportunity Act, I have directed that preparations be made for the delegation of Head Start to the Department of Health, Education, and Welfare. Whether it should be actually transferred is a question I will take up in my later, comprehensive message, along with my proposals for a permanent status and organizational structure for OEO. Pending a final decision by the Secretary of HEW on where within the department responsibility for Head Start would be lodged, it will be located directly within the Office of the Secretary.
In order to provide for orderly preparation, and to ensure that there is no interruption of programs, I have directed that this delegation be made effective July 1, 1969. By then the summer programs for 1969 will all have been funded, and a new cycle will be beginning.
I see this delegation as an important element in a new national commitment to the crucial early years of life.
Head Start is still experimental. Its effects are simply not known--save of course where medical care and similar services are involved. The results of a major national evaluation of the program will be available this Spring. It must be said, however, that preliminary reports on this study confirm what many have feared: the long term effect of Head Start appears to be extremely weak. This must not discourage us. To the contrary it only demonstrates the immense contribution the Head Start program has made simply by having raised to prominence on the national agenda the fact--known for some time, but never widely recognized--that the children of the poor mostly arrive at school age seriously deficient in the ability to profit from formal education, and already significantly behind their contemporaries. It also has been made abundantly clear that our schools as they now exist are unable to overcome this deficiency.
In this context, the Head Start Follow-Through Program already delegated to HEW by OEO, assumes an even greater importance.
In recent years, enormous advances have been made in the understanding of human development. We have learned that intelligence is not fixed at birth, but is largely formed by the environmental influences of the early formative years. It develops rapidly at first, and then more slowly; as much of that development takes place in the first four years as in the next thirteen. We have learned further that environment has its greatest impact on the development of intelligence when that development is proceeding most rapidly--that is, in those earliest years.
This means that many of the problems of poverty are traceable directly to early childhood experience--and that if we are to make genuine, long-range progress, we must focus our efforts much more than heretofore on those few years which may determine how far, throughout his later life, the child can reach.
Recent scientific developments have shown that this process of early childhood development poses more difficult problems than had earlier been recognized-but they also promise a real possibility of major breakthroughs soon in our understanding of this process. By placing Head Start in the Department of HEW, it will be possible to strengthen it by association with a wide range of other early development programs within the department, and also with the research programs of the National Institutes of Health, the National Institute of Mental Health, and the National Institute of Child Health and Human Development.
Much of our knowledge is new. But we are not on that ground absolved from the responsibility to respond to it. So crucial is the matter of early growth that we must make a national commitment to providing all American children an opportunity for healthful and stimulating development during the first five years of life. In delegating Head Start to the Department of HEW, I pledge myself to that commitment.
The Vocational Education Amendments of 1968 directed the Commissioner of Education to study the Job Corps in relation to state vocational education programs. I have directed the Secretaries of Labor and of Health, Education, and Welfare, and the Assistant Secretary of Labor for Manpower, to work with the Acting Commissioner of Education in preparing such a report for submission to Congress at the earliest opportunity.
One of the priority aims of the new Administration is the development by the Department of Labor of a comprehensive manpower program, designed to make centrally available to the unemployed and the underemployed a full range of Federal job training and placement services. Toward this end, it is essential that the many Federal manpower programs be integrated and coordinated.
Therefore, as a first step toward better program management, the Job Corps will be delegated to the Department of Labor.
For the Department, this will add another important manpower service component. For the Job Corpsmen, it will make available additional training and service opportunities. From the standpoint of program management, it makes it possible to coordinate the Job Corps with other manpower services, especially vocational education, at the point of delivery.
The Department of Labor already is deeply involved in the recruitment, counseling and placement of Job Corpsmen. It refers 80 percent of all male and 45 percent of all female enrollees; it provides job market information, and helps locate Job Corpsmen in the areas of greatest opportunity.
This delegation will also be made effective on July 1, 1969; and the Departments of Interior and Agriculture will continue to have operating responsibility for the Job Corps centers concerned primarily with conservation.
I have directed that preparations be made for the transfer of two other programs from OEO to the Department of Health, Education, and Welfare: Comprehensive Health Centers, which provide health service to the residents of poor neighborhoods, and Foster Grandparents program. In my judgment, these can be better administered at present, or in the near future, within the structure of the Department.
In making these changes, I recognize that innovation costs money--and that if OEO is to continue its effectiveness as an innovating agency, adequate funds must be made available on a continuing basis. Moreover, it is my intent that Community Action Agencies can continue to be involved in the operation of programs such as Head Start at the local level, even though an agency other than OEO has received such programs, by delegation, at the national level. It also is my intent that the vital Community Action Programs will be pressed forward, and that in the area of economic development OEO will have an important role to play, in cooperation with other agencies, in fostering community-based business development.
One of the principal aims of the Administration's continuing study of the anti-poverty effort will be to improve its management effectiveness. When poverty fund monies are stolen, those hurt most are the poor--whom the monies were meant to help. When programs are inefficiently administered, those hurt most again are the poor. The public generally, and the poor especially, have a right to demand effective and efficient management. I intend to provide it.
I expect that important economies will result from the delegation of the Job Corps to the Department of Labor, and we shall continue to strive for greater efficiency, and especially for greater effectiveness in Head Start.
A Concentrated Management Improvement Program initiated in OEO will be intensified. Under this program, selected Community Action Agencies will be required to take steps to devise improvements in such areas as organizational structure, financial and accounting systems, personnel training and work scheduling. Standards will be applied under the "management improvement program" to evaluate the operations of Community Action Agencies. We intend to monitor these programs actively in order to insure that they are achieving high-level effectiveness and that they are being administered on an orderly basis.
In the past, problems have often arisen over the relationship of State, county and local governments to programs administered by OEO. This has particularly been the case where the State and local officials have wanted to assume greater responsibility for the implementation of the programs but for various reasons have been prevented from doing so. I have assigned special responsibility for working out these problems to the newly-created Office of Intergovernmental Relations, under the supervision of the Vice President.
I have directed the Urban Affairs Council to keep the anti-poverty effort under constant review and evaluation, seeking new ways in which the various departments can help and better ways in which their efforts can be coordinated.
My comprehensive recommendations for the future of the poverty program will be made after the Urban Affairs Council's own initial study is completed, and after I have reviewed the Comptroller General's study of OEO ordered by Congress in 1967 and due for submission next month.
Meanwhile, I would stress this final thought: If we are to make the most of experimental programs, we must frankly recognize their experimental nature and frankly acknowledge whatever shortcomings they develop. To do so is not to belittle the experiment, but to advance its essential purpose: that of finding new ways, better ways, of making progress in areas still inadequately understood.
We often can learn more from a program that fails to achieve its purpose than from one that succeeds. If we apply those lessons, then even the "failure" will have made a significant contribution to our larger purposes.
I urge all those involved in these experimental programs to bear this in mind-and to remember that one of the primary goals of this Administration is to expand our knowledge of how best to make real progress against those social ills that have so stubbornly defied solution. We do not pretend to have all the answers. We are determined to find as many as we can.
The men and women who will be valued most in this administration will be those who understand that not every experiment succeeds, who do not cover up failures but rather lay open problems, frankly and constructively, so that next time we will know how to do better.
In this spirit, I am confident that we can place our anti-poverty efforts on a secure footing--and that as we continue to gain in understanding of how to master the difficulties, we can move forward at an accelerating pace.
The White House
February 19, 1969