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Aging, 1967-72 (1)
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Gerald R. Ford Congressional Papers
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The original documents are located in Box D58, folder "Aging, 1967-72 (1)" of the Gerald
R. Ford Congressional Papers at the Gerald R. Ford Presidential Library.
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File
National Republican Congressional Committee
Chairman's BULLETIN
CONGRESSIONAL HOTEL . WASHINGTON 3, D. C.
October 27, 1967
Dear Colleague:
One of our colleagues, Buz Lukens of Ohio,
recently conducted a series of Senior Citizens' Forums in his
District and found them in his words "extremely effective
and well attended."
The attached memo from Buz on how he set
up these meetings may suggest ideas for similar activity in your
District.
Sincerely,
Bob
Bob Wilson, M. C.
Chairman
BW:pat
Attachment
No. 36
SUMMARY OF SENIOR CITIZENS' FORUMS
By Rep. Donald E. Lukens
As part of my program to reach citizens of the 24th Congressional District, I recently
sponsored a series of five separate forums for senior citizens, sometimes referred to as Golden
Agers. These were held in the five most populous cities in my four-county district. As a direct
or indirect result of the program, I established contact with about 4,000 senior citizens, including
approximately 700 who attended the forums.
The preliminary preparation consisted of assigning a secretary in the office total
responsibility for the program subject to scrutiny by my administrative assistant. The secretary
went home a week prior to actual forums to follow up on last minute details and last minute
arrangements, ordering name tags, double checking invitees, etc.
The basic format for the panel was: (a) Invocation by a local pastor; (b) Pledge of
Allegiance by president of local Senior Citizens Group, or outstanding senior citizen in the event
no group existed in the area; (c) Panel consisting of Congressman, Social Secuirty representative,
Veterans Administration representative, County Welfare representative, State Division of Public
Welfare representative.
The week before the conference I invited 30 senior citizens to attend a meeting (most
of whom showed up) to form a 24th Congressional District Senior Citizens Advisory Committee.
This was an overwhelming success. We took large and small group pictures which would be of
local PR interest for the papers covering the site of the five forums. Each member of the advisory
committee was invited to attend all of the senior citizens forums.
We sent out personalized invitations to every county official and mayor of the cities in
which the conferences were held and made a particular effort to contact all elected officials.
Personalized letters of invitation were sent to as many names as we could compile of senior
citizens in the district, or approximately 4,000. GOP precinct committeemen forwarded to our
office the names of those senior citizens residing in their district. Membership lists of Senior
Citizens Clubs were obtained where possible. One major industry forwarded a list of retired em-
ployees.
Questions and answers were lively, heated and highly successful. At the end of each
question-answer session, when the time was up, I introduced local officials who showed. Not one
Democrat official attended one function; however, several Republicans did, and this was comment-
ed on favorably by senior citizens in attendance.
We had Young Republicans and Republican Women's groups, where appropriate, sponsor
the refreshments. I announced those groups that had done this because of their concern for the
senior citizens, and it met with much favorable response.
We ended by making the statement that this conference was called for the express
purpose for providing answers and being of service to the senior citizens. Everyone who had
additional questions not answered by the panel were expressly invited to come forward afterward
and privately ask these questions of the panel and myself.
###
Aged
(near (newtile)
White House
Conference
on Food,
Nutrition
and Health
FINAL REPORT
ADDENDUM
In the page plating of the Final Report, in Panel II-4 (Aging), pages 62
to 64, Recommendation Nos. 5 through 11 were omitted accidentally. Some
type from the galleys listing Panel members also was lost. To correct these
errors the complete report of Panel II-4, including a listing of Panel members
and consultants, is printed in the following pages.
ERRATA
The appendix to Recommendation No. 8 of Panel II-1 is misplaced. It
appears incorrectly before the report of the Panel on pages 30 through 35. It
should appear following the report.
Two charts, Exhibits A-I and A-II, appear incorrectly on pages 244 and
245. The charts are in their proper place in the appendix to Panel III-1 on
pages 111 and 112.
PANEL II-4: THE AGING
*Chairman: Edward L. Bortz, M.D., Senior Consultant in
Sylvia Sherwood (Mrs. Clarence Sherwood), Ph. D., Di-
Medicine, Lankenau Hospital, Philadelphia, Pa., former
rector of Social Gerontological Research, Hebrew Re-
President, American Medical Association.
habilitation Center for Aged, Roslindale, Mass.
Vice Chairman: Donald M. Watkin, M.D., Staff Physician,
Leola G. Williams (Mrs. Wilburn Williams), Director,
Veterans Administration Hospital, West Roxbury,
Greenwood Center, Star, Inc., Greenwood, Miss.
Mass., former Program Chief, Research in Nutrition
Consultants:
and Clinical Research in Gerontology, Veterans
Administration.
Ruebin Andres, M.D., Assistant Chief, Gerontology Re-
search Center, National Institutes of Health, U.S. De-
Panel members:
partment of Health, Education, and Welfare, Baltimore,
Rev. Richard Cartwright Austin, Director, West Virginia
Md.
Mountain Project, The United Presbyterian Church,
William L. Holmes, Ph. D., Director, Division of Research,
Whitesville, W. Va.
Lankenau Hospital, Philadelphia, Pa.
James E. Birren, Ph. D., Director, Gerontology Center,
Caro E. Luhrs, M.D., Medical Advisor to the Secretary,
University of Southern California, Los Angeles, Calif.
U.S. Department of Agriculture, Washington, D.C.
W. E. Cornatzer, M.D., Ph. D., Professor and Chairman,
Constance McCarthy, Chief, Public Health Nutrition Serv-
Department of Biochemistry, and Director, Ireland Re-
ices, Rhode Island State Department of Health, Provi-
search Laboratory, School of Medicine, University of
dence, R.I.
North Dakota, Grand Forks, N. Dak.
Marie C. McGuire, Assistant for Problems of the Elderly
Nylda Gemple (Mrs. Herbert Gemple), Nutritionist,
and Handicapped, Renewal and Housing Assistant, U.S.
Bureau of Adult Health and Disease Control, Depart-
Department of Housing and Urban Development, Wash-
ment of Public Health, City and County of San Fran-
ington, D.C.
cisco, Calif.
John B. Martin, U.S. Commissioner, Administration on
William Hutton, Executive Director, National Council of
Aging, U.S. Department of Health, Education, and Wel-
Senior Citizens, Washington, D.C.
fare, Washington, D.C. Also Special Assistant to the
Juanita M. Kreps (Mrs. Clifton H. Kreps, Jr.), Ph. D.,
President for the Aging and Director, 1971 White House
Dean of the Woman's College, Duke University, Dur-
Conference on Aging.
ham, N.C.
Gladys H. Matthewson, Nutrition Consultant, Community
Alfred H. Lawton, M.D., Ph. D., Associate Dean of Aca-
Health Service, Medical Care Administration, Region
demic Affairs, University of South Florida, Tampa, Fla.
6, U.S. Public Health Service, Kansas City, Mo.
George Mann, Ph. D., Associate Professor of Biochemistry
Charles E. Odell, Director, Office of Systems Support, U.S.
and Medicine, Vanderbilt University School of Medicine,
Training and Employment Service, Manpower Adminis-
Nashville, Tenn.
tration, U.S. Department of Labor, Washington, D.C.
Father Anthony Rocha, Chaplain, Catholic Memorial
Mollie Orshansky, Economist, Office of Research and Sta-
Home, Fall River, Mass.
tistics, Social Security Administration, U.S. Department
Russel B. Roth, M.D., Urologist, Erie, Pa. Also Speaker,
of Health, Education, and Welfare, Washington, D.C.
House of Delegates, American Medical Association.
Nathan W. Shock, M.D., Chief, Gerontology Residence
Center, National Institutes of Health, U.S. Department
*All those associated with the Conference noted with sorrow
of Health, Education, and Welfare, Baltimore, Md.
the death of the Chairman of the Panel on Aging, Dr. Edward L.
Marvin J. Taves, Ph. D., Director, Research and Develop-
Bortz, on February 24, 1970. The recommendations of the Panel
ment Grants, Administration on Aging, U.S. Department
reflect his knowledge and dedication to alleviating the problems
of the aging.
of Health, Education, and Welfare, Washington, D.C.
1
years, taking an additional 5 million people
clear, simple, uniform, and widely published
out of poverty and hunger.
Federal standards.
2. That the public welfare system be completely
3. Such standards must permit very low income
revised to provide a Federal welfare program
persons and families to obtain stamps with-
with adequate payments based solely on need
out cost. Those who purchase stamps must be
REPORT OF PANEL II-4
of the consumer and with Federal financing
permitted to purchase portions of their allot-
and administration of welfare costs.
ment at various times throughout the month.
PREAMBLE
2. Undertake permanent funding programs of
3. That the Federal Government assure all
4. The U.S. Department of Health, Education,
daily meal delivery service, initially consist-
Americans the economic means for procuring
and Welfare should initiate ongoing impact
The present crisis among the aged demands im-
mediate national action to relieve poverty, hunger,
ing of at least one meal for all the aged need-
the elements of optimum nutrition and
research to monitor and evaluate the effective-
malnutrition and poor health. Furthermore, posi-
ing this service and desiring it, in both urban
health, and assure the distribution, availabil-
ness of the food stamp program in placing
and rural locations emphasizing the impor-
ity and utilization of adequate information,
the resources for sound nutrition into the
tive measures are required throughout life to re-
tance of the values of eating in group settings
facilities, and services.
hands of all low-income Americans.
tard the premature debilitating aspects of aging.
where possible. This service may be provided
4. That the Federal Government eliminate all
Certain priorities exist:
Recommendation No. 4: EDUCATION, RESEARCH
in restaurants, institutions or other suitable
barriers to adequate nutrition and health for
1. Provision of adequate income to the aging.
AND DEVELOPMENT
sites for the well aged or at home for the
all segments of the population, particularly
2. Provision of adequate nutrition to the aging.
homebound.
those groups with special needs, e.g., the aged,
It is recommended:
3. Provision of adequate health services to the
3. Develop a system of reimbursement with
the poor, the handicapped and minority
1. That the U.S. Government develop guidelines
aging.
4. Federal, State and local funding to insure im-
either food stamps or coupons, as outlined in
groups, including those using languages other
for a nutrition education program aimed at
Recommendation No. 3 of this Panel, or
than English.
the elderly. This program should include an
mediate implementation of the above.
credit cards which will be acceptable to the
5. While the Panel on Aging joins other panels
emphasis on physical activity and social in-
5. Prompt provision of substantial increases in
Federal funding for support of education,
recipients and efficient for the system, and
in endorsing a guaranteed annual income, we
teraction. These guidelines should give di-
which will retain freedom of choice for the
are concerned that older individuals, having
rection to mass media, voluntary and official
research and development in nutrition and
user.
contributed to and living within their social
agencies, advertising agencies and industry.
gerontology.
4. Develop surveillance systems that will insure
security benefits, may find their standard of
To avoid preventable nutritional and health
Recommendation No. 1: MEAL DELIVERY
both the nutritional quality and the accept-
living reduced. Therefore, we recommend
disabilities of aging, these guidelines should
ability of the meals. The single daily meal
that social security beneficiaries receive in-
The U.S. Government, having acknowledged
emphasize adequate nutrition education and
will furnish at least one-half of the daily
come in an amount at least of a level on parity
practice throughout life.
the right of every resident to adequate health and
nutrition, must now accept its obligation to pro-
Recommended Dietary Allowance of the
with any implemented system of guaranteed
2. That educational programs for the elderly
Food and Nutrition Board of the National
annual income.
vide the opportunity for adequate nutrition to
be developed by competent, qualified health
every aged resident. Immediate attention must be
Research Council. It may include foods to be
Recommendation No. 3: FOOD STAMP PROGRAM
and social service personnel including those
given to developing a new system of food delivery
eaten at other times during the day. The re-
REVISIONS
specializing in diet counseling, utilizing a
based on modern technical capability by which
maining allowance, especially of calories,
variety of media. These programs should
Supporting the position of Panel V-3, and sup-
meals supplying a substantial proportion of nutri-
may be obtained by the individual's initiative
recognize educational reading levels, common
porting the policy position of the President that
ent requirements can be distributed to the aged
language usage, and ethnic or cultural back-
facilitated by income supplements and the
urges revision of the food stamp program as an
through restaurants, institutions and private
grounds, to provide a means of effective edu-
revised food stamp program when necessary.
interim mechanism for implementing the procure-
cation and communication on all aspects of
homes when this is necessary. Regional, urban and
The meal delivery system should extend to
ment of food by the poor; and supporting the im-
cultural differences in the United States will re-
food supply, nutrition and health. These pro-
all areas as feasible systems are developed.
mediate enactment by Congress of S. 2014 and
quire that a variety of systems may be necessary
grams should include direct handout mate-
Recommendation No. 2: INCREASED INCOME
urging the entire White House Conference to press
to accomplish this goal.
rial, media programing and the training of
for its enactment,
The Administration on Aging within the De-
indigenous senior citizens where possible as
Because diet quality and income are related, and
partment of Health, Education, and Welfare and
The Panel on Aging makes the following addi-
community workers in all service areas.
because many older people do not have the income
the Department of Agriculture should begin at
tional recommendations:
3. That Government funds be provided to aug-
to provide adequate nutritious diets, immediate
once to implement a variety of meal delivery sys-
1. The food stamp program must be revised SO
ment training programs for preparation of
increases in the incomes of elderly people are a
tems in the following ways:
that any individual or family receiving food
professional and subprofessional workers in
vital first step in freeing the aged from hunger
1. Assemble a working party of scientists, in-
stamps may purchase prepared meals with
nutrition and gerontology.
and malnutrition.
dustrialists and representative aged persons
stamps. Restrictions in current legislation
4. That surveys of institutionalized and non-
with experience in nutrition science, food
Therefore it is recommended:
limiting eligibility for food stamps to those
institutionalized aged be carried out with re-
preparation, food habits, and meal service
1. That social security benefits be increased by
having adequate cooking facilities must be
spect to their nutrition and health status and
who will review existing experience with low
50 percent and the minimum benefit raised
eliminated.
that these data be used to eliminate faculty
cost meals and meal delivery service.
from $55 to $120 monthly within the next 2
2. Eligibility for food stamps must be estab-
diagnoses based on dietary deficiencies.
lished on the basis of self-declaration under
5. That because of the mental health problems
2
3
associated with the problems of social isola-
reach service be reflected in all future plans
requirements of the elderly, they should be
cient, effective utilization of these funds be
tion and inadequate nutrition, a National
for possible extension or modernization of
available to all residents regardless of age.
incorporated into every program derived
Commission for Mental Health of the Aged
existing facilities.
2. That promotion of these new food products
from these recommendations.
be established.
3. That the U.S. Department of Housing and
be accompanied by an education program
6. That substantial funds be devoted to the sup-
Recommendation No. 11: IMPLEMENTATION
Urban Development include in its programs
geared to the needs of those seeking economi-
port of basic and applied research as an in-
for Senior Citizens one that responds to the
cal high quality nutrition.
It is recommended:
vestment for the future health and nutrition
needs of the more frail elderly, those who
3. That all packaged food products be labeled in
1. That action to implement each of the Panel's
of the Nation. Since effective action pro-
cannot shop and prepare meals, but who are
clearly visible print with their nutrient con-
recommendations be initiated immediately.
grams are based on research findings, im-
not ill and do not need more costly and less
tents translated into proportions of daily
2. That the President immediately establish a
mediate action must be based on the best
socially desirable medical facilities.
allowances of the four basic food groups.
mechanism to give leadership to their effec-
information currently available. However, it
4. That the Federal Government fund construc-
4. That this labeling system not replace present
tive development and to the continued moni-
must be recognized that continued research
tion of neighborhood centers for the elderly
ingredient labeling.
toring of progress on each recommendation.
on the basic nature of aging and its relation
which can provide services peculiar to the
5. That the Federal Government launch a con-
Responsibility for implementation of these
to nutrition is essential for progress in the
needs of older persons.
centrated educational campaign against food
recommendations should be turned over to
future.
5. That research and demonstration programs
faddism utilizing the new food lines, the
existing agencies and the coordination and
Recommendation No. 5: NATIONAL CODE OF
jointly funded by the Department of Hous-
education program and the proposed labeling
communication among these agencies guaran-
STANDARDS
ing and Urban Development and the Adminis-
system.
teed by authority exercised through the Office
tration on Aging be undertaken to bring about
of the President of the United States.
It is recommended: That persons and agencies
Recommendation No. 9: SOIL BANK UTILIZATION
a closer relationship between housing design
3. That the forthcoming White House Confer-
providing residential care or home health care
FOR HOME GARDENS
and construction and the services needed to
ence on Aging (November 1971) include a
for any number of the aged be required to sup-
round out a rewarding environment.
Many rural, landless families, suffering from
review and evaluation of progress on each of
ply adequate nutrition and health services for
Recommendation No. 7: TRANSPORTATION FOR
malnutrition, live near farmland held in the Fed-
these recommendations as part of the re-
their clientele and that to help insure this,
eral Soil Bank.
sponsibilities of a Panel on Nutrition with
the Federal Government establish a national
THE AGED
It is recommended: That the Federal Soil Bank
the objective of providing recommendations
code of health, nutrition, and personnel stand-
The older population in large part must depend
ards and use its powers to encourage each State
legislation be amended to entitle persons to
for further action.
on accessible and economic public transportation
to adopt and enforce this code.
raise foods for personal consumption on soil
to reach services, including food services. There-
bank land.
COMMENTS OF COMMUNITY
Recommendation No. 6: HOUSING AND DINING
fore, to overcome the effects of limited mobility, to
ORGANIZATION TASK FORCE
FACILITIES
assure continued access to the general community,
Recommendation No. 10: FUNDING
to provide opportunity for a role in society befit-
It is recommended:
An effective meal delivery service for the older
PANEL II-4: The Aging
ting their years and physical condition.
citizen, accompanied by opportunity for sociabil-
1. That as a sincere expression of the national
ity, can be extended effectively on a workable
It is recommended That the U.S. Department of
commitment to solving the problems of nutri-
The task force felt that residency and citizenship
neighborhood basis through the use of various
Transportation, in conjunction with the Depart-
tion and poor health among the elderly, the
requirements for old age assistance should be done
facilities including particularly centers in housing
ment of Health, Education, and Welfare, its
President vigorously support Federal ac-
away with. The task force also felt social security
developments located in strategic neighborhood
Administration on Aging, and the Department
tion to provide adequate funds for immedi-
benefits should be fully retroactive back to the time
areas.
of Housing and Urban Development, seek ways
ate and realistic implementation of all the
of first eligibility for those belatedly applying for
of providing necessary transportation for the
aforementioned recommendations.
benefits. Both of these suggestions were ignored by
It is recommended
elderly and other disadvantaged groups who are
2. That evaluation designed to insure the effi-
the Panel on Aging.
1. That all housing programs for the elderly,
not within reach of, or able to use normal public
no matter how financed or by whom spon-
transportation (if it exists) in order to take
sored, include meal service with proper nu-
advantage of nutrition, health and other
trition, this recommendation to include those
services.
developments for the well elderly which also
provide individual cooking facilities within
Recommendation No. 8: PACKAGING AND LABEL-
their dwellings. Community spaces provided
ING
for such meal service be designed by or in
It is recommended:
cooperation with persons knowledgeable in
1. That the U.S. Government establish a
food preparation and dining arrangements.
mechanism in collaboration with private in-
2. That in order to reach older people in the
dustry for the development of economical,
surrounding neighborhood, this service be
nutritious, easily prepared, attractive and
extended to older people in the neighborhood
readily stored new lines of food products.
and the planning and funding for this out-
While these would satisfy certain packaging
5
U.S. GOVERNMENT PRINTING OFFICE: 1970 O-398-317
4
VOL. I NO. 8
NEWSLETTER OF THE UNITED/COMMUNI TY SERVICES
APRIL, 1971
SENIOR CITIZENS PROJECT
REGIONAL SESSION
The admonition of Keynote Speaker Clark
Beiriger, member of the state commission,
PROPOSES GOALS
"If you don't do the job here, it won't be
done," seemed to be adequately answered by
the delegates.
A consumer protection department in the fed-
Mr. Beiriger noted that the 1961 White House
eral government with cabinet status.
Conference presented more than 1,000 recom-
mendations a number much too great to be
A system of National Health insurance.
given serious consideration. But this year
it is planned to present no more than 100
Elimination of stated retirement ages, with
realistic proposals to achieve greater ad-
retirement based on merit of individual con-
ministrative and legislative impact in
ditions.
Washington.
Spiritual well-being should be encouraged
There are 33,000 citizens over 62 years of
but is "irrelevant to legislation."
age in Kent County alone, the speaker noted.
And we must "shorten the gap between the in-
These are a few of the highlight recommenda-
come of the young and that of the old. To
tions proposed at the Regional Conference on
what avail is it to live longer without some
Aging conducted by U/CS at Wege Center, Aq-
of the comforts of life?"
uinas College, March 13.
Top billing was given the unit report on
The conference, designed to formulate sug-
consumer protection, which advanced the idea
gested policies for the White House Confer-
of a cabinet level department, with a sub-
ence on Aging next November, was a success
division for the aging -- "to catalog and
on several counts. Attendance of 160 repre-
disseminate pertinent information to the
sentative leaders from Kent, Muskegon and
general public on consumer products, ser-
Ottawa counties was even greater than anti-
vices and finances, including sources of aid;
cipated, while spirited discussion in 11
to develop a viable method of feedback to
separate groups testified to the intensity
update the system; to bring to the attention
of participation.
of appropriate enforcement agencies the vio-
lation of consumer laws.
If there was any criticism it was that the
schedule did not provide sufficient time to
Actions in other discussion units may be
cover the unit agenda completely. At least
summarized as follows:
one recorder also noted the lack of blanks
for the proposal of additional alternates to
Health: A new, simplified system of per-
the stated questions.
sonal health care based on need; medicare
and medicaid to be expanded to provide total
The units in some cases appeared to be tied
care; environmental health education with
too tightly to the series of subjects pre-
emphasis in the area of self-treatment and
sented in question form, which was a restric-
its hazards; training of all professionals
tive influence on some discussions. Some of
in the needs of the aging and apportionment
the questions were decidedly "leading", in-
of some funds to research. Two sections un-
dicating a "wanted" answer. But generally
der this topic agreed on national health in-
the regional recommendations provided solid
surance as a goal.
suggestions for consideration by the state
Commission on Aging, to be refined for sub-
Housing: A fixed proportion of housing
mission to the national conference.
funds to be devoted to the aging; eligibil-
(Cont.)
ELDERSCOPE
PAGE 2
REGIONAL SESSION (Con't)
SOCIAL SECURITY RAISED
ity for low cost housing to be based on in-
A 10% raise in Social Security payments will
come; the federal government to insure state
start with the June 3 check covering the
and local government participation, with de-
month of May. The raise is retroactive to
cisions left to local units; tax relief for
January 1 and the increase for January
the elders and emphasis on more congregate
through April will be issued in June as a
housing, including life support.
separate lump sum. Congress voted this ac-
tion on March 16 and it was signed into law
Nutrition: An adequate diet for all persons
by the president.
as part of the total health program; a high-
er level of, enforcement of standards by
Exception: Those older than 72 who have
states.
never worked to pay into Social Security but
are receiving it by eligibility of age will
Income and Financing: An income in accor-
receive only a 5% increase.
dance with the American standard of living,
tied to the cost of living index regionally
The annual amount that may be earned by a
adjusted; such income should not be at the
person without reducing his Social Security
poverty level; encouragement of private pen-
remains at $1680 per year or $140 per month.
sion plans with protection through early
Congress considered reducing this, but took
vesting of funds; a national health plan,
no action.
and property tax relief based on income.
Quoting from the Grand Rapids Press of March
Education: Use of the existing system for
17, 1971: "The economic thrust of the So-
education with the initiative resting with
cial Security bill will be far-reaching.
local agencies; research and innovation and
The extra money, as one economic expert put
emphasis on education for retirement.
it 'will go to a lot of people who have been
forced to scrimp.
Employment: Eliminate static retirement
age; encourage greater acceptance of pre-re-
tirement education; training for jobs in re-
CHASKES ELECTED
tirement.
Retirement roles: Government to supply
guidelines but roles are basically the re-
Charles H. Chaskes, Executive Director of
sponsibility of individuals and local agen-
the Michigan Commission on Aging, has recent-
cies.
ly been elected president of the National
Association of State Units on Aging (NASUA).
Transportation: Subsidized systems needed,
The Michigan Commission finances the Kent
with special equipment for the elderly; lo-
County Senior Citizens Project, together
cal agencies to assist in transportation to
with Grand Rapids Foundation and U/CS.
shopping centers, religious and cultural in-
NASUA is made up of executives of the fifty
stitutions.
state commissions on aging and acts between
the state units and the federal department
Spiritual Welfare: Government should not
of Health, Education and Welfare (HEW) and
seek to dictate; churches should retain
the administration.
autonomy in their own programs and action.
Mr. Chaskes will work with the states and
Several units came up with overlapping, but
the federal government to propose legisla-
common recommendations, particularly in the
tion to benefit older people. He has been
fields of finance, taxes, education and
with the Michigan Commission since 1966 and
health. The local recommendations will be
is now a member of the White House Confer-
considered with those of other regions about
ence on Aging planning board. He will be
the state in a Michigan conference scheduled
presiding in office during the November 1971
in May.
Conference.
ELDERSCOPE
PAGE 3
and making the health of the nation a feder-
GERALD R. FORD SPEAKS
al public responsibility. Mr. Ford hopes
Congress will complete its preliminary study,
AT XYZ SENIOR CENTER
evolve a new health bill and pass new legis-
lation by next fall.
A packed house of concerned senior citizens
A question period followed Mr. Ford's speech.
at XYZ Center met Congressman Gerald R. Ford
Individuals in the audience voiced concern
the afternoon of March 26 when he flew in to
about the continued lack of good housing,
Grand Rapids from a Washington bi-partisan
assistance for purchasing homes and the
breakfast with President Nixon. Michigan's
still too-low incomes of those living on
Fifth District Representative and Minority
Social Security. Congressman Ford said the
Leader of the House spoke to the group on
government is aware of these needs and is
Social Security, Medicare, national health
moving in the directon of betterment. The
insurance, federal housing and welfare re-
administration's proposed revamp of the wel-
form.
fare system, called the Family Assistance
Plan (FAP) will solve many problems, accord-
Representative Ford outlined progress and
ing to Mr. Ford.
predictions for improvement in each area.
However, he cautioned that those in govern-
Mr. Ford decried "the disaster lobby" in
ment find it easy to make promises; but
this country, - "the prophets of gloom and
bringing things into actuality has many ob-
doom." He admitted we still haven't solved
stacles and takes time. Social Security
many of our problems, but if we look at
needs an automatic escalator clause tied in-
things from the perspective of the nation's
to the cost of living changes, Mr. Ford said.
less than 200 years, we have advanced a long
He hopes it will come with the next legisla-
way toward a better life for everyone. Mrs.
tive bill. He also believes new provisions
Walter W. Coe, Coordinator of XYZ Center was
will be passed to increase the earning lim-
gratified at the turnout by friends of the
itation to a level of $2000. It now stands
center, as well as participants from all
at $1680.
areas in the city.
Better health insurance for all people in
PUBLIC INVITED TO MAY 8
America is recognized as an urgent need by
HOUSING MEET
both the House and the Senate. Mr. Ford
A community forum on good housing for the
pointed out that Congress is now considering
new legislation aimed toward a major over-
elderly has been scheduled by Mr. and Mrs.
haul of the nation's health programs. Large
John Rafferty, VISTA Volunteers.
gaps in medical service and insurance exist
and the government is under pressure to act.
When- May 8th, Saturday, 2:30 P.M.
Where- Methodist Community House, 904 Shel-
Several plans are being considered.
on SE (formerly Our Lady of Sorrows
School).
The Nixon administration proposes adjust-
Who- Mr. Noverre Musson will speak. He is
ments and innovations within private agency
one of the nation's leading architects
programs for coverage. Medicare would be
specializing in housing for the elderly,
continued with one change, - the amount de-
and author of the most authoritative book
ducted monthly from Social Security would be
in the field, "Buildings for the Elderly."
eliminated. The costs would be paid for
He will be chairman of the Housing Commit-
from general taxes. Social Security taxes
tee at the 1971 White House Conference on
for both employer and employee would be in-
Aging in November at Washington D.C.
creased.
There will be a reaction panel, composed of
Another proposal mentioned by Mr. Ford is
community people, after Mr. Musson's presen-
advocated by Senator Edward Kennedy (D-Mass).
tation. There will also be an open question
It calls for a huge over-all federal program
session when the audience is urged to ask
eliminating private insurance participation
questions. You are encouraged to attend, ask
questions, and make your views known.
ELDERSCOPE
PAGE 4
AT THE SENIOR CENTERS
WEST SIDE CENTER - THE OLD HELP THE YOUNG
XYZ CENTER SIDEWALK REPAIR ASSISTANCE
"Mittens, Mittens, Who'll Make Some Mittens?"
XYZ's action paid off. Homeowners who are
The call went out from the West Side center
receiving welfare aid or assistance may ap-
and in no time mittens-for-kiddies poured in.
ply at the Kent County Social Services de-
Little mittens, big mittens, all-sizes-in-
partment for funds for the cost of sidewalk
between mittens to make sure there'd be no
repair. The city attorney's office recently
more cold hands in Grand Rapids.
notified the XYZ Center staff of this fact,
citing that the money is available under
Two West Side Volunteers, Mrs. Barbara
Section 14 (d) of the Michigan Social Secur-
Parsaca and Mrs. Carol Vance, discovered
ity Act and the federal Social Security Act
early this winter that many children through-
(Title 42, Sec. 1319.)
out the city were being brought to day-care
centers and elementary schools without mit-
The Grand Rapids city charter and city code
tens. So they decided to try to do something
require homeowners to maintain and repair
about it. They approached Miss Margaret
sidewalks running along their property.
Hartnacke, coordinator at the West Side cen-
Volunteers joined William Glenn, urban agent
ter, who went into immediate action. All
from the XYZ Center a few months ago to
senior groups at the West Side center were
appear before the city commission to point
alerted to work with knitting needles, cro-
out that people with low incomes cannot meet
chet hooks, patterns and yarn. The word
this expense. The commission referred the
spread and enthusiastic response came from
matter to the Service Committee, which in
senior groups apart from the center, as well
turn asked the city attorney for a ruling.
as from individuals with time on their hands.
The result was in favor of the lower income
Many helpers were residents of nursing homes
group.
and other institutions.
EYE CLINICS HELD
The project will continue throughout the
Two free eye clinics have been held at the
year to form a "mitten bank" for next winter.
XYZ Center with a total of 24 examinations.
Anyone interested in knitting or donating
The latest was on March 3 when 15 older per-
materials may call Miss Hartnacke 451-3309.
sons were seen by Dr. Louis Bozin. Mrs.
Walter W. Coe, coordinator of the center,
announces that another clinic will be held
in the fall.
KEEN-AGE KOFFEE HOUSE
"Our Keen-Ager ladies are busy as bees ex-
pressing love and adding joy to those less
fortunate," reports Mrs. Mary Nell Lewis,
How about the little old lady who went to
coordinator. Volunteer groups at the center
her doctor for her annual checkup?
are making Easter baskets, chocolate bunnies
"You are in good shape," he said, "for a wom-
and dyed eggs which they will take to older
an of your age. How old are you now, my
shut-ins living in rest homes.
dear?"
"I am one hundred and two years old," she
Keen-Agers will join Teen-Agers this year
replied.
putting on the annual spring carnival at
"One hundred and two! Amazing! You are in
Franklin school late in April. The senior
extraordinary shape."
center will have a booth featuring handmade
"Thank you, doctor. I'll see you next year."
quilts, ceramics, jewelry and other craft
"I hope SO. You sound very confident."
work. Mrs. Lewis promises: "Name it, it'll
"I am. I looked up the statistics," she
be there!"
said, "and I found very few women die be-
tween one hundred and two and one hundred
Keen-Age Center message to you: "If you
and three."
Goodman Ace "Top of My Head"
happen to be breezing this way, please stop
Saturday Review, March 20, 1971
in. You're always welcome."
Westsiders knit and sew for others.
Keen-age Koffee House
in
holds a bake sale
olan
blues
wo!
10 OFF?
SENIOR
CENTER
по
to
Keen-agers plan a trip.
ACTIVITIES
Urban agents listen and act on
riw
problems of the aged.
nots
to
Congressman Ford
at
speaks at the XYZ Center.
Westsiders shuffle.
NDY
XYZer's make cancer pads.
ITH
Bingo is a favorite at
all 3 centers.
ELDERSCOPE
PAGE 6
HILLCREST HOMES
NEW VISTAS FOR SENIORS
Today's committee of 24 represents the cli-
Clustered in a wooded setting at Hillcrest
max of this community's concern for older
Homes are one-floor, one-bedroom townhouses
people, which began to stir in 1950. The
that could be your answer to better housing.
chairman, Lawrence Fox Calahan, took office
You would have the pride of ownership as a
in October 1967.
member of the cooperative with all of the
conveniences of being a renter.
Other early leaders still involved in the
program are B.G. Brown, now editor of the
Interest reduction and rent supplement pay-
Elderscope; Wilson Ranck of the Commit-
ments by the Department of Housing and Urban
tee; Dr. Ralph L. Fitts and Dr. Winston
Development could make your total housing
B. Prothro, Director of Kent County Health
charge as low as one-fourth of your adjusted
Department, participants in the March 13 re-
yearly income.
gional White House Conference on Aging here.
Hillcrest Homes is a venture of the Greater
John B. Martin, now U.S. Commissioner on Ag-
Grand Rapids Housing Corporation which was
ing, Administration on Aging, and Special
formed as a non-profit organization with
Assistant to the President of the United
both moral and financial support from the
States on Aging was the first president of
Grand Rapids Area Council of Churches and
the early council. His deputy Commissioner
the Roman Catholic Diocese of Grand Rapids.
on Aging, Willis W. Atwell was Executive
Director of the first professional program
Conveniently located to churches, buses and
for the aging here, from 1959 to 1963. Dur-
shopping Hillcrest Cooperative is magnifi-
ing this period the Oakway-Milner Hotel low-
cently placed to provide scenic vistas of
cost housing project was opened; and the In-
Grand Rapids both during the day and evening
formation, Referral and Counselling program
with the twinkling lights of the busy city
was set up, which evolved into the present
visible. At Hillcrest, senior citizens will
Information and Referral Center of United/
find the stimulation of being able to see
Community Services.
children at play in their activity area,
while still being in their own "quiet sec-
The present Senior Citizens Committee is a
tion."
standing committee of the Planning Division
of United/Community Services. It meets once
Sponsoring this cooperative is the Founda-
a month as directive and advisory body to
tion for Cooperative Housing, a non-profit
the Kent County Senior Citizens Project.
corporation to encourage cooperative communi-
The roster:
ties across the nation. Why not come out to
Hillcrest Homes where a friendly FCH repre-
Lawrence Fox Calahan, Chairman
sentative will meet you at the Information
Center and explain how you can become a mem-
Term expires 1971: E. Ray Baxter, Clark
ber. Dial 243-0625 for easy-to-follow direc-
Beiriger, Mrs. Addelyn Dykhouse,
Miss
tions or an appointment.
Gertrude Slingerland, and Daniel Vargas.
SENIOR CITIZENS
Term expires 1972: George Beld, Arthur Gale,
COORDINATING COMMITTEE
Miss Helen Gleason, Fred M. Jameson M.D.,
Wilson M. Ranck, Rev. Verdi L. Reusser, and
Three active members of the Senior Citizens
David Sherwood.
Coordinating Committee, - Helen Gleason, E.W.
Schnoor Jr. and David Sherwood are early
Term expires 1973: Henry A. Barwin, Miss
pioneers from the first Coordinating Council
Frances F. Graff, L.F. Jessup, William G.
on Aging established back in the '50s. They
Reamon, Paul Robe, E.W. Schnoor Jr., Morley
envisioned and worked along with other fore-
R. Wilson, and Arnold A. Wittenbach.
runners to achieve the Kent County Compre-
hensive Senior Citizens Project, started in
Ex-officio members: Mrs. Henry C. Glover,
1969.
(Cont.)
Mrs. Jesse J. Wilborn, and Mrs. Irene Worden.
ELDERSCOPE
PAGE
7
GUARDIAN VOLUNTEERS
Their responsibilities are divided between
two agencies; - the Human Relations Commis-
sion of the Catholic Diocese, 117 Maple S.E.
NEEDED BY COURT
with Mrs. Gilbert R. Davis VISTA supervisor;
and the Methodist Community House, 101 Hall
S. E., working with Miss Helene Hill, execu-
Volunteers to serve as guardians for older
tive director, and with Ray Elgersma, gradu-
citizens who have become incompetent are
ate student. Their program is with the
needed by probate court to meet an increas-
Model Cities housing project, organizing and
ing demand for this type of service, Probate
stimulating older residents of the inner
Court Judge A. Dale Stoppels has announced.
city to participate in planning for their
own future.
"There are many older persons who needguard-
ians," Judge Stoppels explains. "A surpris-
The Raffertys, in their twenties, were the
ing number have no relatives, or none close
youngest participants at the March 13 re-
by available for this task. If there is a
gional White House Conference on Aging here.
sizeable estate involved there is no trouble,
Their youthful points of view were incorpo-
since they can obtain guardians for a fee.
rated in the final reports.
But many have no estate and need guardians
who will act without pay."
Concern for older citizens began for John
and Lois back in their home community of St.
Many of the elderly receive only Social
Paul and Minneapolis. John was doing inde-
Security, welfare or 0ld Age Assistance
pendent research toward his master's degree
checks. So the guardian's duties are quite
in urban studies. He and Lois set out to-
simple. In many cases they merely receive
gether in the cities' areas where old apart-
the monthly checks and turn them over to
ments and houses were being torn down to
nursing homes or other care facilities. If
make way for urban renewal. They discovered
there any funds left over the guardian may
hardship and personal suffering that come to
take charge of furnishing a few personal
older people who are uprooted from their
needs.
lifetime homes. Their response was offering
their own help in VISTA.
"But the human element is important, too,"
Judge Stoppels says. "Just to know that
John and Lois were both school teachers in
someone will be coming to see them periodi-
Minnesota. They were graduated from Mankato
cally is of tremendous importance."
State College with AB degrees in Education.
They rejected personal advancement and a
With a sufficient number of volunteers the
more stable life for the opportunity to
guardianships could be spread out so they
learn at first hand how life is for the poor
would not be a burden, the judge notes. He
estimates at least 50 volunteers could be
in this country. Their VISTA training peri-
od included living with a mother and her
used through the year. Volunteers wishing
three children who are supported by Aid to
to serve may contact Central Volunteers,
459-3447, or apply directly to probate court.
Dependent Children (ADC), and living and
listed in the telephone book under Kent
working in a deprived area of Chicago. John
also has worked several summers on a rail-
County Government.
road section crew.
John summed it up: "Whatever we decide to
YOUTH HELPING ELDERS
do later, we're glad of this exporience.
It's making us grow." Both he and his wife
IN LOCAL VISTA PROJECT
believe they will want to continue working
There's no generation gap with John and Lois
to improve the status of dependent people.
Rafferty, a young married couple recently
assigned to work here with Volunteers in
Service to America (VISTA), a program of the
Office of Economic Opportunity (0E0). They
Improvement makes straight roads; but the
have chosen to devote their enlistment time
crooked roads without improvement are the
to helping older people. Their involvement
roads of Genius.
here is for one year ending next November.
William Blake
(Cont.)
1-6558 24 - 3 S Ave. Eastern 079
Eastern Avenue X.Y.Z. Center
1-6451 72 - *M $ Ave. 815
Grandville Avenue Center
1-3339 57 - *M N Seward 17
West Side Center
uo
:OL
Rapids Foundation and the Mich. Commission
its three centers, is funded by the Grand
The U/CS Senior Citizens Project, including
Grand Rapids, MI 49502
Project Coordinator Mrs. Eleanor Hargrove
3 S Cherry 525
Rev. Verdi Reusser
Newsletter Chairman
The Hon. Gerald R. Ford
Lawrence Fox Calahan
Project Chairman
B. G. Brown
Editor
directly to the homebound.
tions which serve Senior Citizens and mailed
ELDERSCOPE is distributed through organiza-
Building, Grand Rapids, Michigan, 49502.
GRAND RAPIDS, MICH.
U/CS Senior Citizens Project, 500 Commerce
418 'ON PERMIT
Published monthly as the newsletter of the
PAID
U.S. POSTAGE
ELDERSCOPE
NON-PROFIT ORG.
Do you know some one who is homebound and would like to receive ELDERSCOPE in the mail?
If so, please send us the following coupon:
To: Senior Citizens Project
United/Community Services, Inc.
500 Commerce Building
Grand Rapids, Michigan 49502
Please send ELDERSCOPE to:
NAME
STREET
CITY & STATE
ZIP
NAME
STREET
CITY & STATE
ZIP
If your organization, church, : agency would like to receive ELDERSCOPE for distribution
to older members, please call Pat, 459-6281, Ext. 50.
Mr. Van Penssalaer- Agring
/- Getup a lestof all sr. centers in
Redist.- Theseare fearded importary
The jed Gon't n 4 becoming to for
pol. discussion
- us, Dems.
2. Ea. ctr is adm x by 2am 3 professionals
3, Butra. At has an orgin - find out
who the lersare
4- male contact ut the ben asing
Refined Persons The net
Tehresation- the nat claim Retires
72d. Employees find out when Rey's
lowted - whether any daps. in The
dist. These John consern. + GOP.
Friend out who the state precy is you want
Living Aid, Also the O's of la.
chap in the dist
5- male friends W these individuals
6- Find not what They he probs. are
7- Van Rensaleer sez 70% o them vote.
8-21/3 ofthem are ten. Roor. but the then
43 rds are indep. d have Then probs (alth
pome live on slender means).
9.) Gopha to identify & sech to
jhobs .t to involve Them in the lifed
10.) Write lth to allofth leading
Thecomic unity H
Sr lit- - worth get taknow
you getto know yr proto set
education.
upa nitz - Fall w/Them # You llgetan an
= "Yoirewing, I I've tabletthes
we cant headle This a patch wne,
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bon. We must have a grig
fn The agency.
11- do act as In
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= etc. as a Vol; but pay his cabfare,
12- Take Pre Questionnaire - Select
h. The
"
Rednomilite most usefulmar the
those staps you
1972
= The Pase has to be by Compressons
contacts m Si. Cit llis-z
13- may ealso get names of Si. Cet
14 When cleu's have - the mity -call the
15g Say to $1. City dinner V Why not
Some the gp m the Congressman
TV sta's , the get pix of
list form of aconum SnCiti vols ? Build - involve upa Rem meet
my in bamyanz Get'sm interested
in Yord.
5
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11 the White House #
16- Prexy's miage m Si Cit's is fad
17- He has Aoame out for 10% Son See ware
= Dem will restort the GudgeFants + male
18 Plumin on Aging has been remascular
hay outof it.
We he work worder adeadine.
= Byread ms. Spec Sen.
hear smogr. n 25 spotight
Cord on Ageing isgoing of do hold
Prox 7 Sb % recome in. Efair
the doingrating AOA + Re
= Prey shouldsay tdo some
betw now open d gave has
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60,0 in this ctry 20m. over
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8/ this Hote + can't win in a
65 Arex Goesn't get maj,
a
will
Republican
National
Committee.
February 22, 1971
then We talk with
The Honorable Gerald R. Ford, Jr.
House of Representatives
Washington, D. C.
Dear Congressman Ford:
The elections are over, and now we must begin to think of 1972. In this
connection, it is vital to the success of every Republican candidate that
he recognize the increasing political activity and potential influence of
the Senior Citizens. This is a group which consists of approximately
20,000,000 people over sixty-five and another 9,000,000 between sixty and
sixty-five of whom one-third are presently retired. The size of this
segment of our society is increasing by number and percentage each year.
During the past twenty-five years, changes in our economic and social
patterns have produced many problems of pressing concern to all elderly
people regardless of income, race, cultural background, and geographical
location. Middle-age America has been singularly unconcerned in the
recognition and solutions of these problems. In self defense, older people
in tremendous numbers are joining membership organizations which have
developed a group consciousness and very definite legislative programs.
More than 5.5 million older persons now belong to at least one of these
national organizations. Let us face the facts. It is essential for the
Republican Party to recognize these developments and to meet both the
issues and the political necessities raised by the old-age membership
groups. If we do not soon make a start in this direction, which means
understanding the problems of aging and relating to the Senior Citizen
groups and individual constituents, we stand every chance of suffering
severely in the election of 1972.
I have already pointed out to you in the past the extent to which Republican
strength among Senior Citizens has diminished since 1956. This steady
defection from a naturally conservative group is not politically tolerable.
I also recall to you the fact that the percentage of Senior Citizens who go
to the polls regularly is much higher than in the youth groups.
With all this in mind, and a desire to be helpful in the evolution of a
useful program at all levels of the Party to improve our situation with the
older Americans, I am enclosing a questionnaire which I hope you will find
time to fill out and return to me at your earliest convenience.
Dwight D. Eisenhower Republican Center: 310 First Street Southeast, Washington, D.C. 20003. (202) 484-6500.
Page 2
We have made the questionnaire as direct as possible; and, as you can see,
the purpose is to add not only to our information regarding what has
been done and what can be done in each congressional district, but also to
suggest ideas to all our congressmen that may result in greater interest
on their part. It is especially important to explore what can be done to
bring Senior Citizens to a realization that the Republican Party is not
only informed about the problems of aging, but is sincerely concerned with
reinvolving older people in our national life. Today, unhappily, as Time
magazine pointed out in its interesting article of last August 3rd, the
older Americans in this country are "the Unwanted Generation." The time
has come when this must be changed. The Republican Party must take leadership
in affecting this transition.
I know that you are extremely busy, and I hate to trespass unduly upon your
time, but I can assure you that in most of our congressional districts our
relationship with the Senior Citizens is a political reality of great urgency.
With best wishes.
Sincerely,
Berned S. 5am Renasilars
Bernard S. Van Rensselaer
Director, Senior Citizens Division
Republican National Committee
map
Enclosure
SENIOR CITIZEN CAMPAIGN CHECKLIST
(If the answer to the question is yes, please put a check in the left
margin beside the number.)
1. Did you appoint a Senior Citizen Chairman for your campaign?
If so, did you do the following:
a. Clearly outline his duties and realm of authority?
b. Give him a desk in campaign headquarters?
C. Give him a budget?
d. Make him accessible to the campaign manager and candidate and
include him in staff meetings and the decision-making process?
e. Develop with him a clear campaign strategy and grass roots Senior
campaign organization?
2. Did you prepare a Position Paper on the Problems of Senior Citizens?
If so, did you do the following:
a. Make sure your positions got thorough coverage in the local papers?
b. Have them distributed to all the Senior Centers in your area?
C. Make sure all your precinct workers and volunteer staff were
familiar with your position?
3. Did you make real contact with Senior Citizen Leaders and Organizations
in your district?
If so, did you do the following:
a. Develop a list of all Senior Clubs and Centers in your District?
b. Contact the Officers of the Clubs?
C. Visit many of the Clubs in person?
How Many?
d. Prepare a list of influential leaders in the Senior Citizen
Community, (not necessarily economically influential, but people
known to other Senior Citizens and respected by them?)
e. Did you make a special effort to involve Senior Workers in your
campaign? (Please explain how in the space at the bottom of the
checklist.)
4. Did you attempt to develop a mailing list of Senior Citizens in your
District?
If so, did you do the following:
a. Did you send them special information as Senior Citizens, not just
voters?
b. How large was your list?
c. Do you plan to maintain it during the year?
Checklist Cont.
Page 2
5. Did you allocate a part of your advertising budget toward a Senior
Citizen Campaign?
What percent of your ad budget was applied to Senior Citizens?
If so, did you do the following:
a. Prepare special literature designed for Senior Citizens? (If so,
would you send us a copy?)
b. Make a special television appeal to Senior Citizens?
Was it a talk?
How long?
Was it an ad?
How long?
C. Make a special radio appeal to Senior Citizens?
Was it a talk?
How long?
Was it an ad?
How long?
d. Make sure press coverage of your comments and actions regarding
Senior Citizens reached the Senior Communtiy?
6. Did you as a candidate and do you now feel knowledgeable about the
problems and power of Senior Citizens in your district?
a. Do you know how many there are?
b. How many are registered voters?
C. What percent of them voted for you, and did you note any improvement
in the Senior vote over the last GOP candidate?
d. What issues they are especially concerned about?
e. Why do you think Senior Citizens voted for you?
f. Do you have any plans to further your relationship with Senior
Citizens in 1971?
Please add any comments you feel are needed.
Aging
Senior
Citizens
Campaign
Manual
1972
The time has come for a new attitude
toward old age in America. The time has
come to close the gap between our older
citizens and those who are not old. The way
to do this, I believe, is to stop regarding
older Americans as a burden and start
regarding them as a resource for America.
Bob Dole, Chairman Republican National Committee 310 First Street, S.E., Washington, D.C. 20003
WHY YOU NEED TO READ THIS MANUAL
YOU MAY BE NEGLECTING 20 PERCENT OF YOUR POTENTIAL VOTE.
Although Youth has received more political publicity, Senior Citizens have
developed the real voting clout. The unique, special problems of growing old
in "The Country of the Young" have sparked the emergence of the over sixty
generation into a strong political block with the power to make or break a
campaign.
Consider these facts:
21 percent of all votes cast in 1970 were by people over 60.
The Senior Citizen population has increased seven times since
1900, the total population has increased three times.
Over six million people already belongs to one of four major Senior
Citizen organizations.
The Senior Citizen is the most reliable voter in America. 70 percent
vote regularly. 84 percent are registered voters. In the past, the Republican
Party could rely upon a large percentage of the elderly vote. Not today. We
have dropped from 61 percent of their vote in 1956 to 47 percent in 1968. In
1970 neither party appealed to the Senior Citizen. Our most reliable group
only voted 57 percent.
We must turn out the Senior Citizen vote in 1972. Senior Citizens are
favorably disposed to Republican candidates, but they must be approached as a
special group with special problems. We must appeal to them in a special way.
Beyond technique and specific issues, this manual is the product of a
deep conviction that the Republican Party is committed to the generations that
have built our country and are now pushed out of the mainstream, and can offer
the most dignified and realistic solutions to the problems of Senior Citizens.
You can't reach Senior Citizens two weeks before elections. Begin now to
build a strong base. That is what this manual will help you do. It could mean
the margin between victory and defeat.
- 1 -
SECTION A
WHO IS THE SENIOR CITIZEN
The Issues - Why There Is Senior Citizen Group Identity
- 2 -
WHO IS THE SENIOR CITIZEN?
He is every tenth American.
There are twenty million Americans over sixty-five and another nine million
over sixty. There are 139 women to every 100 men.
He owns his own home.
About 70 percent of the older people own their own homes.
He did not finish High School.
The Senior Citizen grew up with the transition from horse to automobile, often in
a rural area. Half never went to high school. Only 5 percent went to college.
He receives half the income of a younger family.
The median income for Senior Citizen couples is $5,500 yearly. If the Senior
Citizen is single, his income is under $2,000. The gap between the income of
Seniors and younger people is growing wider.
He is married. She is a widow.
There are four times as many widows as widowers.
He lives in a family unit.
Seven out of ten older persons live in families; about one quarter live alone
or with non relatives. Only one in twenty lives in an institution.
- 3 -
THE ISSUES -- WHY SENIOR CITIZENS HAVE A GROUP IDENTITY
POVERTY threatens him.
One quarter of the Senior Citizens fall below the poverty line. In fact, of
ten people who are poor in America, four of those people are Senior Citizens.
THE COST OF LIVING is eating away his savings.
The fixed incomes of Senior Citizens have been eaten away by rising prices.
Social Security benefits and public assistance programs -- from which Senior
Citizens receive over 50 percent of their income in the past have not kept
up with inflation.
THE COST OF STAYING HEALTHY is more than many can afford.
Senior Citizens see their doctors more often and are hospitalized longer. Despite
Medicare and Medicaid, rising health costs of 170 percent in ten years have hit
older people especially hard. Senior Citizens still carry the burden of about
25 percent or $200 of their yearly health bill.
TRANSPORTATION has become a problem.
Lack of means to move around a community can isolate a healthy and physically
mobile person as completely as if she were bedridden. Most older people don't
drive. Taxis are too expensive. Public transportation is often difficult to
use; and it, too, grows more expensive daily.
THE QUALITY OF HIS LIFE has declined.
Older people, pushed by enforced retirement out of the work force, unable to
afford the cost of "leisure living", separated from their families in our mobile
society, feel useless, isolated, and neglected. For many, the golden years of
retirement have become a tarnished myth. In fact, the suicide rate for elderly
men is higher than any other group.
HOUSING is hard to find or difficult to maintain.
About 30 percent of Senior Citizen homes are classified substandard. Most older
people can't afford needed repairs. Often old people are forced to sell their
homes because they can't pay rising property taxes. Those who don't own their
own homes find apartments difficult to locate, too expensive, and poorly designed
for Senior Citizen needs including linkage with public transportation.
INSTITUTIONALIZATION has become a dreaded possibility.
Older people live in fear of being put away in substandard nursing homes, insti-
tutions President Nixon termed "warehouses for the unwanted." Until a recent
Presidential directive, many state regulations for nursing homes were poorly
enforced.
- 4 -
SECTION B
A SENIOR CITIZEN CAMPAIGN
A GUIDE ON HOW TO REACH THE SENIOR CITIZENS
Part One:
Locating Senior Citizens
Part Two:
Major Senior Citizen Organizations
Part Three:
Preparing a Senior Citizen Platform
and Establishing a Positive Image with
Senior Citizen Leadership
Part Four:
Selecting a Senior Citizen Campaign
Chairman - What He Should Accomplish
Part Five:
Senior Citizen Meetings - - How to
Arrange and Conduct Them
Part Six:
Campaign Techniques for Senior Citizens
- 5 -
PART ONE: LOCATING THE SENIOR CITIZENS IN YOUR COMMUNITY
H
0
W
T
0
Aging has become a profession for many sociologists, administrators,
and others in the last ten years. Over 500 organizations interested in Senior
R
Citizens will be represented at the White House Conference on Aging in 1971.
E
In your community or district, a large number of Senior Citizens should be
A
reachable through the following sources:
C
H
1. The Senior Citizen Clubs and National membership organi-
zation are an excellent means of contacting active older
T
people. On the following page is a run-down of the major
H
national organizations.
E
2. Your state has an Administration on Aging reporting to the
S
parent AoA in Washington, a part of Health, Education, and
E
Welfare. Each AoA should have a list of all HEW funded
N
Senior Centers and state supervised Senior Centers. Every
I
candidate should establish contact with his state's AoA
0
and Senior Center.
R
3. In each city, the Department of Recreation is generally in
C
charge of coordinating Senior Citizen Centers and clubs. For
I
example, in Baltimore, Maryland, there are 92 Senior Centers
T
coordinated by the department with memberships running from
I
25 to 4,000 people. Contact your local department for
Z
information, names, and addresses.
E
N
4. Find out if anyone from your area was a Delegate to the
White House Conference on Aging. If so make sure you
contact them. They will have developed a great deal of
expertise in the field of aging and will be valuable
opinion makers in the Senior Citizen community. The State
Administration on Aging should be able to supply you with a
list of Delegates from your state.
- 6 -
PART TWO: SENIOR CITIZEN ORGANIZATIONS
H
0
W
T
There are four major national membership organizations with an aggregate
0
total of over six million members. All of them are expanding rapidly. In the
early stages of a campaign, it is important to contact the leadership of each
R
organization, express your interest in developing a substantial Senior Citizen
E
platform with their advice, and always keep them informed of any activities
A
that would affect their members. Remember that the Senior Citizen press,
C
basically the publications published by each of the major organizations, reaches
H
more readers than does TIME magazine. A good story in their state news letters
will ge a great boon to any campaign. A bad story can mean defeat. The major
T
membership groups are:
H
E
1. American Association of Retired Persons three million dues-
paying members, headquartered in Washington, regional repre-
S
sentatives and state officers in each state. AARP maintains a
E
six-man lobbying force in Washington, distributes a monthly
N
bulletin and two bi-monthly magazines, and increased its member-
I
ship by 780,000 new members last year alone.
0
R
The members of the AARP tend to be sympathetic to Republican
principles and will respond to a candidate with a solid
C
platform for Senior Citizens. In 1971 President Nixon addressed
I
their midwest regional convention. The organization is dis-
T
tributing a film of his speech to all their local chapters.
I
The RNC has a copy of this film.
Z
E
2. National Retired Teachers Association an affiliate of AARP,
N
has 290,000 members, maintains the same national headquarters
and lobbying force as AARP, but has their own state chapters and
officers. NRTA publishes a monthly newsletter and bimonthly
magazine.
3. National Council of Senior Citizens - Headquartered in Washington,
NCSC claims 3,000 affiliated clubs of about three million
members. NCSC is very issue-oriented and the National leader-
ship is rarely sympathetic to Republican candidates probably due
to strong union influences. However, the state organizations and
the local clubs can be very helpful to a Republican candidate if
they are convinced that he is the best man for the Seniors in
their group. NCSC publishes a monthly newspaper.
4. National Association of Retired Federal Employees Headquartered
in Washington, NARFE has 148,000 members but exerts strong
influence on the Hill. It, too, has local chapters in many parts
of the country. NARFE publishes a monthly magazine.
There are other Senior Citizen organizations that are strong in certain local-
ities. Do not forget to contact leaders in such groups as the Telephone Pioneers
and other major industry and union retiree groups.
- 7 -
PART THREE: SOMETHING TO SELL
H
0
PREPARING A SENIOR CITIZEN PLATFORM
W
AND ESTABLISHING A POSITIVE IMAGE
T
0
Senior Citizens have become a very issue-oriented special group. You
cannot sell them on yourself if you have not made a serious attempt to learn about
R
their problems and address yourself to them.
E
A
The Senior Citizen Platform should be your first step in a campaign.
C
H
Your first step toward the development of a good platform should be a
MEETING between the candidate and key Senior Leadership in the area. The
T
results of such a meeting should be two-fold:
H
E
1. A good Senior Citizen Platform responsive to the special
problems of older people in your area will result.
S
E
2. A positive image will be established early among Senior
N
Citizen leadership, an image that will filter down to the
I
Senior Citizens.
0
R
Prior to the meeting, have your staff explain to those who will attend
that the candidate would like to learn from them what they believe should be
C
done for Senior Citizens. Ask them to have their views down on paper.
I
T
Invite to that first meeting all the Senior Citizen Leadership in your
I
community whether they are sympathetic to you and the Party or not. Remember
Z
that the vast majority of Senior Citizen leaders are committed to Senior Citizens
E
first and politicians second. If they are convinced that you are genuinely
N
interested in and concerned with older people's problems, they may not support
you, but they probably won't actively oppose you. You will have opened some new
avenues and neutralized potential opposition.
Make your Platform simple, concise, and earnest. Once it is prepared,
release it with full publicity. Make sure that every Senior organization and
center receives copies and that every leader receives a personal letter and
copy from the candidate.
Now that you have something to sell, you are ready for serious campaigning.
Your next step is to select the right person to help you do that, a good Senior
Citizen Chairman.
- 8 -
PART FOUR: THE SENIOR CITIZEN CHAIRMAN
H
0
W
Select a vigorous and retired Senior Citizen to lead your campaign. Make
sure he is good on details, a self-starter, and a person with the time to handle
T
a thorough Senior Citizen Campaign.
0
Make him a part of your regular campaign organization, and make it clear
R
to your staff, especially your press secretary and your scheduling man, that his
E
advice is to be sought and heeded.
A
C
Demand the following from your Senior Citizen Chairman:
H
1. Supervise the development of a comprehensive mailing list of
T
Senior Citizens including as many telephone numbers as possible.
H
E
The Senior Citizens Division of the RNC can also supply contacts
for purchasable Senior Citizen lists.
S
E
2. Establish contacts in the Senior Citizen community in every
N
area. Have volunteers available for campaigning and distributing
I
material.
0
R
3. Create a flow of handbills and news items on the candidate and
Senior Citizens. Be responsible for developing the means of
C
distributing information for the least expense.
I
T
4. Work closely with the candidate's scheduler to make sure that
I
the candidate appears at Senior Centers and Senior Citizen
Z
events - and that the candidate receives invitations to speak
E
to Senior Citizen groups.
N
5. Develop the manpower for the final phase telephone and door-to-
door campaigns.
(Put your Senior Citizen Chairman in touch with the Director of the
Senior Citizens Division at the RNC for suggestions and guidance.)
- 9 -
PART FIVE: SENIOR CITIZEN MEETINGS
H
0
W
Nothing can replace the impact of seeing the candidate in person. With
good press coverage, advertising, and advance publicity, a meeting between
T
the candidate and Senior Citizens in his area will prove more effective with
0
Senior Citizens than any other campaign tool. Schedule as many meetings as
possible across your district.
R
E
1. The Place: a federal courtroom, school auditorium, and public
A
meeting place near public transportation.
C
H
The Time: between 10 am and 4 pm. Do not exceed two hours in
length.
T
H
3. The Invitations: Send as many personal invitations as possible.
E
Contact all clubs and churches. Preadvertise inexpensively on
radio and in the newspapers. (Remember that Seniors read the
S
papers more thoroughly than any other group.)
E
N
4. The Staging: Check the acoustics in your meeting place. Make
I
sure everyone can hear. Set up the forum in a way that makes
0
it easy for the candidate to interact with the Senior Citizens.
R
Avoid a stiff, formal program.
C
5. The Social Hour: Mingle after the program, and make it fun.
I
Serve refereshments, (coffee, tea, soft drinks, cake). Explore
T
the possibilities of entertainment. In rural areas some people
I
have found Senior Citizen string bands or Barber Shop Quartets
Z
in the city.
E
N
THE PROGRAM
If you are an incumbent, the Senior Citizen Forum has been very effective.
The candidate will have assembled a small panel of experts from different
government agencies who administer programs for Senior Citizens such as Social
Security, Housing, Medicare, transportation. At the opening of the meeting,
the candidate will give a brief talk about bringing government to the people
and urge Senior Citizens to ask questions and register complaints. Make sure
that the candidate maintains tight control over the panel, does not allow
speeches, and keeps the questions moving briskly. It is very prudent to have
a series of questions already drawn up in case the audience is slow warming up.
Make sure the panel is available at tables after the forum to distribute
information and answer individual questions.
If you have not held office, try the Senior Citizen Hearing. Form your
panel with vocal Senior Citizens from your area. Invite them to testify about
Senior Citizen Problems. Act as moderator and approach the meeting as a time
to get to know and understand the problems of Senior Citizens. After intro-
ducing yourself, begin the testimony. Ask questions yourself and open discussion
to the audience. Newsmen love these sessions.
(Contact the Senior Citizens Division of the Republican National Committee
for more details and suggestions for Senior Citizen Meetings.)
- 10 -
PART SIX: CAMPAIGN TECHNIQUES
H
0
W
Senior Citizens are one of the easiest special groups to reach in a
campaign. They congregate in Senior Centers, tend to live in certain areas,
T
belong to special clubs.
0
Because they have time on their hands, they can be utilized easily for
R
volunteer work. A well-organized Senior Citizen campaign will find the Seniors
E
organizing themselves.
A
C
Among the effective means of reaching Senior Citizens are:
H
1. Telephone Campaign: A good telephone campaign in which
T
Senior Citizens call each other on behalf of the candidate,
H
will have tremendous impact. Make sure that each sympathetic
E
person called is asked to call five of his friends.
S
2. Direct Mail: Senior Citizens respond more positively to
E
mail than any other group, especially a personal letter from
N
the candidate. One interesting technique is the neighbor
I
letter, especially effective in Senior Citizen housing complexes.
0
A Senior Volunteer writes all her neighbors on behalf of a
R
candidate, explaining that this probably her first political
letter but she feels so strongly that Mr. Doe will do a wonderful
C
job that she has been stirred to write to her friends and
I
neighbors on his behalf and hopes they will do the same.
T
I
3. Newspaper Advertising: Don't forget ads in weeklies and small
Z
local papers. Senior Citizens read the papers thoroughly.
E
Print ads are an especially good way of getting across detailed
N
positions.
4. Radio: Radio is particularly good during weak television periods,
early in the morning, late at night, and Sunday daytime.
5. Television: Always good and very effective during TV's cheapest
time spots if you pre-advertise for a major talk. Always make
sure that Senior Citizen appeals have been integrated into the
total media campaign.
- 11 -
SECTION C
SENIOR CITIZEN SOURCE MATERIAL
The President Speaks to Older Americans - Quotes
Administrative Initiatives for the Senior Citizens
Index of the Senior Citizen Population by State
Senior Citizens Division, RNC, Services Available to You
- 12 -
- QUOTES -
THE PRESIDENT SPEAKS TO OLDER AMERICANS
"Old Age should not be a time of endings, but a time of new beginnings--
not a time for stopping, but a time for new starts.'
"I call today for a new alliance in this country between Americans who
are under 65 and those who are over 65.
The American community will be incomplete without the full participation
of every American. For each generation has its unique role to play in the
unfolding drama of America.
Let us then put aside the things which would divide us--suspicion,
condescension, resentment and indifference. Let us join together across the
Nation
and make ourselves an even greater America as we move forward together."
"What we must build in this country--among all of our people--is a new
attitude toward old age; an attitude which insists that there can be no retire-
ment from living, no retirement from citizenship."
"We have to stop discrimination in this country against older people who
want to work. The time has come to raise the ceiling on how much a person
can earn while receiving Social Security. The time has come to increase the
amount of Social Security he can keep when his earnings exceed that ceiling."
=
if there is any single institution in this country that symbolizes
the tragic isolation and shameful neglect of older Americans, ... it is the
substandard nursing home, and there are some. Some are unsanitary. Some are
ill-equipped. Some are overcrowded. Some are understaffed
=
"Only through revenue sharing, where the Federal Government shares its
revenues with the States, are we going to stop the rise in local property
taxes in this country, which is eating into the budget of every retired person
who owns his own home."
II
we have proposed that the Federal Government place a floor under the
income of every senior citizen in America. We have proposed that Social
Security benefits for widows be raised. We have called for an automatic cost
of living increase in Social Security to make certain that monthly payments
will keep up with inflation.
The fact that many older people may not be active members of the labor
force does not mean that they should be denied a fair share of our growing
productivity."
"The ancient Greeks said that we could count no man's life happy until
the end of it. For if any man is to live a good life in the most complete
sense, then his later years must also be years of fulfillment. As we pursue
this goal and break away the barriers to full participation for those who are
old today, we will also break them away for those who will be old tomorrow."
- 13 -
ADMINISTRATIVE INITIATIVES FOR THE SENIOR CITIZENS
(By early 1972 it is likely that the following list will be outdated.
During and after the White House Conference on Aging, President Nixon will
probably announce new legislation to make life more livable for the older
generation. You will receive an updated list.)
Total spending for the elderly has increased under President Nixon from
$29.6 billion in 1968 to $46.6 billion estimated for 1972, a rise of 57 per
cent in four years.
A. Programs to Improve Income
1. Social Security: Social Security benefits are now one-third
more than in 1968.
President Nixon has proposed in HR I automatic adjustments in
Social Security benefits as the cost of living rises, a proposal
designed to take politics out of the benefits. (Automatic
increases have been part of the GOP program since 1966. Demo-
crats have consistently opposed it.)
2. Guaranteed Annual Income: The new program would reform the
present welfare system and providenational standards for the
needy aged of $130 monthly, rising to $150 monthly over two years.
The proposals when fully effective would increase benefits for
a couple to $200 a month.
3. Other Income Improvements: The President has improved Civil
Service retirement rules, increased railroad retirement by
25 percent since 1968, and increased veterans pensions and
service-connected injury compensation by 10 percent.
B. Programs to Improve Health
1. Nursing Homes: The President has cracked down on substandard
nursing homes which he termed "dumping grounds for the dying."
He has increased the number of federal inspectors by 150,
requested from Congress funds to train an additional 2,000
inspectors over the next eighteen months, and warned states and
homes that he will cut off Medicaid and Medicare funds from homes
that are substandard.
2. New Health Partnership Proposals: The President has proposed
extensive legislation to reform the Medicare-Medicaid system.
The Health Partnership program would eliminate the monthly
Medicare premium of $5.60 a month for supplemental medical
insurance, a savings for Senior Citizens that is equivalent to
a 5 percent Social Security increase. The proposals would also
allow Medicare beneficiaries to receive care from Health Main-
tenance Organizations emphasizing preventive care and treatment
for chronic conditions.
- 14 -
C. Programs to Reinvolve Senior Citizens in Service Opportunities
1. The President has launched ten Retired Senior Volunteer Projects
(RSVP), one in each federal region, aimed at utilizing the skill
of Senior Citizens in public service jobs.
2. The President has transferred the RSVP and Foster Grandparent
Programs to the new ACTION Agency with the pledge that the
programs will receive new emphasis. (Foster Grandparent places
low income Senior Citizens as companions four days a week with
children in orphanages and institutions. It pays the "Grandparent"
minimum wage.)
3. The President has funded fourteen projects to study and demonstrate
special transportation facilities for the elderly and handicapped.
4. The President has continued for a fourth year demonstration
Nutrition projects for Senior Citizens costing $1.8 million.
- 15 -
BREAKDOWN OF POPULATION OF SENIOR CITIZENS
AGE SIXTY AND OVER IN THE UNITED STATES 1970-71
Percent of total
Male
Female
Total
Population
UNITED STATES
12,434,932
16,230,844
28,665,776
14.1
ALABAMA
203,962
271,241
475,203
13.8
ALASKA
6,845
5,352
12,197
4.1
ARIZONA
108,290
125,439
233,729
13.2
ARKANSAS
151,187
183,416
334,603
17.4
CALIFORNIA
1,107,609
1,464,138
2,571,747
12.9
COLORADO
117,183
149,707
266,890
12.1
CONNECTICUT
175,893
239,098
414,991
13.7
DELAWARE
27,224
36,591
63,815
11.6
FLORIDA
601,677
742,508
1,344,185
19.8
GEORGIA
321,437
319,326
640,763
14.0
HAWAII
36,045
31,443
67,488
8.8
IDAHO
46,750
51,213
97,963
13.7
ILLINOIS
676,415
895,082
1,571,497
14.1
INDIANA
302,668
398,725
701,393
13.5
IOWA
207,104
270,288
477,392
16.9
KANSAS
158,580
208,965
367,545
16.4
KENTUCKY
210,271
265,953
476,224
14.8
LOUISIANA
193,697
255,689
449,386
12.3
MAINE
68,883
91,241
160,124
16.1
MARYLAND
189,076
254,485
443,561
11.3
MASSACHUSETTS
358,266
530,706
888,972
15.6
MICHIGAN
489,636
599,589
1,089,225
12.3
MINNESOTA
252,291
312,082
564,373
14.8
16
MISSISSIPPI
141,938
178,398
320,336
14.4
MISSOURI
335,821
447,811
783,632
16.8
MONTANA
46,380
50,791
97,171
14.0
NEBRASKA
109,986
140,410
250,396
16.9
NEVADA
24,719
24,125
48,844
10.0
NEW HAMPSHIRE
46,845
63,427
110,272
15.0
NEW JERSEY
433,012
578,022
1,011,034
14.1
NEW MEXICO
49,044
56,114
105,158
10.4
NEW YORK
1,200,369
1,613,211
2,813,580
15.5
NORTH CAROLINA
260,559
353,621
614,180
12.1
NORTH DAKOTA
44,947
48,866
93,813
15.2
OHIO
615,285
811,297
1,426,582
13.4
OKLAHOMA
182,764
238,546
421,310
16.5
OREGON
146,012
175,195
321,207
15.4
PENNSYLVANIA
786,201
1,045,363
1,831,564
15.5
RHODE ISLAND
60,518
86,646
147,164
15.5
SOUTH CAROLINA
118,362
167,910
286,272
11.1
SOUTH DAKOTA
50,779
58,961
109,740
16.5
TENNESSEE
240,503
315,474
591,977
15.1
TEXAS
627,394
827,061
1,454,455
13.0
UTAH
50,924
61,616
112,540
10.6
VERMONT
28,471
37,992
66,463
15.0
VIRGINIA
229,493
308,541
538,034
11.6
WASHINGTON
206,396
253,693
460,089
13.5
WEST VIRGINIA
125,894
153,075
278,969
16.0
WISCONSIN
297,182
364,167
661,349
15.0
WOMING
21,016
22,714
43,730
13.2
D.C.
40,693
63,020
103,713
13.7
- - 17
SENIOR CITIZENS DIVISION, RNC
From the Director:
There is no doubt in my mind that, if the 1972 election is close, we
must not only have a clear majority of the older vote as defined by Gallup
(fifty and over), but the President must run at least 4 percentage points
better with that group than he does among the total electorate. This is
predicated upon a two-party contest; and we have evidence in past elections
to support this conclusion. Our endeavors among Senior Citizens must be
well organized and pushed to the limit. We must begin to do this now. We
cannot wait until next year. I hope each party worker and every potential
candidate will make a sustained and concerted effort to win the confidence
and the support of the older people in his community. The Senior Citizen
vote in 1972 will mean the margin of victory for the President and the Party.
SERVICES AVAILABLE TO YOU
1. Research: We will be glad to supply information on the
the Republican position on respective issues, statistics,
facts about older people, information on pertinent issues
that concern older people and their concensus on them.
2. Political Support: We will assist the candidate in any
way possible. We have information on various old-age
groups across the country, population distribution, etc.
3. Field Work: At your request, we will be glad to advise you
in setting up a Senior Citizen Campaign in your district.
This has proved very successful in the past.
SENIOR CITIZENS STAFF
Director.
BERNARD S. VAN RENSSELAER,
Special Assistant to the Chairman
Political Assistant
RUTH NOBLE GROOM
Telephone
(202) 484-6677
- 18 -
ments range from hiring more trained nurses to im-
President's
proving food services, from eradicating fire and safety
Pledge
hazards to instituting better drug administration pro-
cedures. Additionally, of course, many hundreds of
To Elderly
homes have always met or even exceeded the Federal
Becoming
or state standards.
A Reality
We have instituted a crash effort to assess the State
Medicaid certification and enforcement effort. Teams
of Federal inspectors are working in 52 jurisdictions,
making spot checks in nursing homes and reviewing
(Excerpted from HEW Secretary Elliott Richardson's address before
every State's certification program. This special sur-
the Conference of the Duke University Center for the Study of Aging
and Human Development, The American Association of Retired
vey, due for completion nationally by November 15,
Persons and The National Retired Teachers Association).
should help the States improve their performance.
It has been said that a civilization's progress can be
Nursing Homes
measured best bv analvzing how it treats those of its
Monday.NOV.8,1971
MONDAY is sent three times monthly to contributors of $25 or more,
of which $5 is for subscription to MONDAY per annum.
Republican National Committee
310 First Street, S.E.
Washington, D.C. 20003
Senator Bob Dole-Chairman
Tom Evans-Co-Chairman Anne Armstrong-Co-Chairman
Lyn Nofziger-Deputy Chairman for Communications
John D. Lofton, Jr.-Monday Editor
Bill Fleishell-Art-Design Pam Pitzer-Editorial Assistant
Second Class Application, Pending at Washington, D.C.
Volume 3, No. 38
2
Monday.NOV.8,1971
FORGET THE PRESIDENCY,
IS SEN. EDWARD KENNEDY
FIT TO BE A SENATOR?
(See story page 3)
British TROOPS
OF
Republican
National
aging
Committee.
July 9, 1971
Honorable Gerald R. Ford, Jr.
House of Representatives
Washington, D. C.
Dear Congressman Ford:
I am enclosing the text of a speech delivered by the President in Chicago
on June 25 to some three thousand delegates and guests attending the Midwest
Convention of the American Association of Retired Persons and the National
Retired Teachers Association. I hope you will find time to read this speech
because it presents some thoughts and attitudes toward the elderly which have
great relevance to the well being of older Americans and their political
reaction in 1972.
It is unnecessary for me to stress the political significance of what is
transpiring among the Senior Citizens of this country. The majority feel re-
jected, isolated, and useless in the eyes of our middle-aged population who
determine national policies and pay taxes. The retired element of our society
has reacted to these emotions and to their difficult economic and social prob-
lems by developing a group consciousness that is manifested in the tremendous
growth of the old-age membership organizations. These organizations now number
almost six million persons, and "Senior Power" is becoming a political reality.
Neither political party over the years has been particularly sensitive to the
growth of the Senior Citizen movement, and there has been a failure to recognize
that this is a special group with special problems and must be reached in a
special way. Legislation affecting the elderly has been on a patchwork basis
and frequently for political purposes. It has failed to come within any estab-
lished frame of reference with long-range objectives because no such frame of
reference exists. I think this is what the President was trying to convey to
his most enthusiastic audience in Chicago; and I suggest that every Republican
candidate, state organization, and all party workers should devote some time
and attention to the urgent task of following the President's leadership and
strengthening the Republican image among our Senior Citizens at state and local
levels. This will require planning and active work. It should not be left until
1972 to initiate such an effort. The time to strengthen our relations with older
Americans through the country is now. They are waiting for leadership, and they
are basically responsive to Republican values, but they must be approached and
involved in our party activities.
Dwight D. Eisenhower Republican Center: 310 First Street Southeast, Washington, D.C. 20003. (202) 484-6500.
Page 2
The Senior Citizens Division of the Republican National Committee is eager
to assist you in a positive Senior Citizens program to the extent you think
we can be of help. We are particularly interested in working with Senatorial
candidates and state central committees in those states having a high con-
centration of older voters and in those congressional districts where Senior
Citizens will make the difference between victory and defeat.
We shall have more material to submit to you from time to time; but in the
meanwhile, we hope to hear from you in connection with this high priority
undertaking.
With all good wishes.
Sincerely yours,
Berwood S. You Penselver
Bernard S. Van Rensselaer
Director
Senior Citizens Division
BSVR/map
Enclosure
REMARKS OF THE PRESIDENT AT JOINT CONFERENCE OF
NATIONAL RETIRED TEACHERS ASSOCIATION AND AMERICAN
ASSOCIATION OF RETIRED PERSONS PICK-CONGRESS HOTEL,
CHICAGO, ILLINOIS, June 25, 1971
Mr. Faassen, Mrs. Pearce, Mr. Nash, Senator Percy, and all of the
distinguished delegates to these conventions:
I well recall that occasion in the Oval Office of the President of the
United States when I welcomed the two millionth member of the American
Association of Retired Persons. I only hope that your membership continues to
grow and that the organization will deserve to have it continue to grow, and I am
sure that will be the case.
I was thinking, too, as I looked over the backgrounds of those who are
the leaders of these organizations, that I have something in common with them
which I would like to refer to briefly; that is, their association with music. I
notice, for example, that Mr. Faassen played in Sousa's Band, and anybody who
has heard this great Navy Band -- aren't they good, though, our great Navy Band?
When we think of John Phillip Sousa and the tradition he left, and, of
course, through the years Mr. Faassen has also made a contribution in many
other ways, but particularly in the field of music. Mrs. Pearce taught music for
42 years. I think of what a legacy she must have left. I don't mean that all those
she taught became musicians. I speak with experience. I learned from a music
teacher, too, but I am not a musician. I am a piano player, but I don't play much
in the White House now. I studied the violin when I was in high school. As you
can see, despite the fact that I studied both the piano and the violin in high
school, it didn't do much for my dancing.
One little boy in Indiana yesterday paid me a great compliment about that.
I remarked in my speech in my mother's home town about the fact that my dancing
was not particularly something I was proud of. He said, "You know, Mr.
President, you did keep time." That is because of my musical background. I
can keep time, but I don't know the steps.
But I am privileged to join with this organization. I know this is a
regional organization in the heartland of America, but in speaking to you, I want
to speak to the entire organization. I want to speak to all the people who could be
members of this organization -- retired teachers, retired persons all over
America. So although this is a representative group, a very important group,
let me now speak to all Americans who are 65 or over, and those who will be
65 or over, and that, of course, is all of us. We hope to live that long.
Page 2
There is an old story about a man who went to his doctor one day and
asked what he should do so he would live to be 100. The doctor's response was
that the man should give up everything and he should do absolutely nothing that
would cause him to exert himself.
Then the man asked, "Then you can promise me I will live to be 100? "
"No, " said the doctor, "but it sure will seem like it. "
Well, you know, the doctor had a point. For nothing ages a person
faster than the feeling that he is unneeded, unwanted, and he is unproductive.
Senator Percy and I both remember a grand old man in the Senate, Senator Green
of Rhode Island. He served in the Senate until he was over 90. He used to put
it this way: "Most people, 11 he said, "say that as you get old you have to give
up things. " He said, "I think you get old because you give up things. "
I think most of you, and most Americans, would agree with that. What
I would like to talk about today, however, is the frequent failure of our society
to put this wisdom into practice, for we have not, in fact, been doing a very good
job of involving older people in the life of our American society.
This is a great tragedy. It means that old age, which should be a time
of pride and fulfillment-- looking back and looking forward is too often a time
of isolation and withdrawal. Rather than being a time of dignity, it is often a
time of disappointment, and the growing separation of older Americans also
means that we are not taking full advantage of a tremendous reservoir of skill
and wisdom and moral strength that our Nation desperately needs at this moment
in its history.
There is one thing I know about the older generation in America. They
believe in this country. They have faith in this country. They have the moral
strength and character that we need, that all Americans need.
Now, all of you know we are engaged in a great venture in America, and
that is to bridge the gaps which have developed between geographic parts of this
Nation, to bring the North and South and East and West together; between the
economic classes, to bring the workers and management and others together; to
bridge the gap between racial groups and religious groups, and lately we have done
a great deal of soul-searching about the place of the younger generation in our
national life.
But while the generation gap between the young and their parents has
captured our attention in the recent years, as it should, the generation gap between
the older Americans and the rest of our people has often just been ignored. It has
been slighted.
Page 3
The time has come for a new attitude toward old age in America. The
time has come to close the gap between our older citizens and those who are not
old. The way to do this I believe; is to stop regarding older Americans as a
burden and start regarding them as a resource for America.
Even while science has made it possible for people to live longer, the
trend toward earlier retirement, the growing mobility of society, the loosening
of family ties mean that large numbers of senior citizens now have neither
families nor jobs to give a focus and a foundation to their daily existence. That
is why I say that the generation over 65 is a very special group which faces
very special problems it deserves very special attention. That is why we
have been moving to insure that our older citizens get that special attention they
deserve.
Let me talk about that special attention for a moment, if I can.
First, we are making determined efforts to improve the financial
position of our older citizens. Despite the fact that overall American expenditures
on the aging has just about doubled in the last five years, despite the fact that
Social Security has gone up 25 percent in the last two years alone -- and it will
probably go up another five percent -- old age is still a time of great social
insecurity for too many of our citizens. One out of every four older Americans
lives at or below what is called the "poverty line" in America.
To begin to deal with this problem, we have proposed that the Federal
Government place a floor under the income of every senior citizen in America.
We have proposed that Social Security benefits for widows be raised. We have
called for a system -- and this, it seems, is extremely important; I campaigned
on it in 1968; I support it now; I believe it is time that we do it: We find that in
Social Security we are always catching up with the increase in the cost of living,
and that is too late. That is why I say that we need an automatic cost of living
increase in Social Security to make certain that monthly payments will keep up
with inflation, keep up with those which it hits so hard -- older citizens.
The fact that many older people may not be active members of the labor
force does not mean that they should be denied a fair share of our growing
productivity.
I would like to talk about another initiative which probably at first glance
doesn't seem to have much to do with the problems of older people -- revenue
sharing. This is an issue that Senator Percy is supporting very, very strongly.
It is supported on a bipartisan basis by a majority of the members of the Senate
and a majority of the members of the House. I believe it is going to pass.
Page 4
renshaving
Let me tell you why I believe it has a direct relationship to the budgets
of senior citizens and retired people in this country. Only through revenue
sharing, where the Federal Government shares its revenues with the States,
are we going to stop the rise in local property taxes in this country, which is
eating into the budget of every retired person who owns his own home.
I found in a meeting in Washington -- you will remember, Mrs. Pearce
and Mr. Faassen at that meeting I asked about the various problems older
citizens had. One thing they were unanimous on was that property taxes, going
up and up and up, was a tremendous problem for every budget of older citizens,
because they have no increase in their income, and they find those property
taxes going up.
It is significant to note that of people over 65, over 70 percent own their
own homes or their own apartments. So you have a stake in seeing to it that
those property taxes don't continue to go up.
I had a letter from a woman in Long Island, not yet retired. She,
however, had the problem, and she pointed it out very interestingly. She said
she bought her house five years ago. At that time the monthly mortgage
payments were $100 a month, which was more than she could afford, but it was
$100 a month. She said in the past five years the mortgage payments have gone
up to $150 a month because of the rise in property taxes. She said there is a new
provision, a proposal being considered by the voters of the county in which she
lives, which will increase them again. She said, "If they go up again, I am
going to have to sell my house, because I can't afford to live in it any longer. "
We have to stop the rise of property taxes in this country, and revenue
sharing is the best way we can do it. That is why we ask your support of that
proposal.
Now, I come to something that I think is particularly close to the hearts
of this organization, because all of those who represent this organization have
spoken to this problem when we have met in the White House, and I want to
speak to it now, to you and all of the older people in America.
We have to stop discriminating in this country against older people who
want to work. The time has come to raise the ceiling on how much a person
can earn while receiving Social Security. The time has come to increase the
amount of Social Security he can keep when his earnings exceed that ceiling.
You know what the problem is today. If you receive Social Security and
if you are able to and want to work, the amount that you can earn is limited, or
it cuts into your Social Security. When people are able to work, when people
want to work, there is no excuse for government programs which give them a
strong incentive not to work. That is why I believe we need to move in this field.
Page 5
Discrimination that is based on age -- what some people call age-ism --
can be as wrong as discrimination based on race or religion or any other irrelevant
test. For in all of these cases the individual is judged on some arbitrary category
rather than his value as a unique human being.
Old age should not be a time of endings, but a time of new beginnings --
not a time for stopping, but a time for new starts.
For many, of course, retirement comes as a long awaited reward at the
end of a full career. I am sure many of you read with great interest the press
conference that that great lady of the American stage, Helen Hayes, had when
she retired after 65 years of acting. She was happy, she said, that she would
not have to face the pressures of a live performance again. But then, I noticed
at the conclusion of her interview that she said. Listen to this: "Yes, other
pressures will come along, " she acknowledged. "That's life, isn't it? And
I'm not about to retire from living. "
So, that is the key to the matter. What we must build in this country
among all of our people is a new attitude toward old age; an attitude which
insists that there can be no retirement from living, no retirement from
responsibility, and no retirement from citizenship.
There are countless ways in which the experience and the energy of
retired persons can continue to be tapped. I received a letter the other day from
an 80-year old man who knew me as a small boy when he delivered milk to my
father's grocery store. He lives in Southern California still. He has gone
to work in a hospital as a Foster Grandfather. This is what he wrote: "This
has been a tremendous experience for me, not only in being able to supplement
my Social Security, but in the thrill of helping mentally retarded children. 11
He cares. He brings to that position something that money wouldn't buy:
commitment and caring.
Where older people are willing to do that, where they want to do that,
we have to give them a chance. The country needs them, His testimony is
echoed by thousands of other older Americans older people who find that their
work in hospitals and schools, in churches and parks and penal institutions
not only makes a tremendous contribution to the lives of others, but also gives
a new pride and purpose to their own existence. You know what your own slogan
is, "to serve and not be served. 11 It expresses that same principle.
I am happy to say that Federal efforts to promote such activities are
expanding. This week marks the inauguration of the first 10 projects in the
Retired Senior Volunteer Program, known as RSVP. If the Congress approves
my budget, this program will be greatly expanded nextyear. m/oi
72,
Page 6
The RSVP and Foster Grandparents Programs have been recently
transferred to the new ACTION agency. I have noted that some have been fearful
that this program will be de-emphasized as a result of that transfer. I assure
you that just the opposite is going to take place. We are going to put more
emphasis on those particular programs.
Now, these are some of the things we are doing. Other steps are going
to follow. In this connection, I am particularly looking forward to the White
House Conference on Aging later this year. You have heard from Mr. Martin
and others who will be working on that conference. This conference promises
to provide the most valuable of all resources for policy making: new and fresh
ideas. We want your ideas, the ideas of this organization. That is why I met
with the leaders of your organization in preliminary sessions. But we want you
in this convention and in other conventions to give us the ideas so that those who
meet in the White House will represent the whole country, not just their own
views.
All who take part in this conference and in the State conferences which,
as you know, are going to go forward beforehand can be sure that we will welcome
recommendations. We are going to give them our closest consideration.
Now, I would like to speak with regard to that conference on one issue
that I have directed be given special attention, perhaps more attention than any
other, if one issue has to have priority. I refer to the need to reform the
regulations with regard to nursing homes in this country.
Let's look at the figures. 900,000 at the present time, people over 65,
live in nursing homes. Some of them are very fine homes. I saw one yesterday
just by accident. I was driving back from my mother's home in Southern Indiana
to Indianapolis. As we went along, I saw some older people on the side of the road
waving. So, I stopped the car and right back of where they were waving was a
Presbyterian Home for the Aging.
I said, "How do you like it? They said, "It is a wonderful place. " I
could see why, because of the Presbyterian minister who was in charge, a young
man who obviously loved the people he was working with, was there. Some of
the nurses and others were there. You could see they were all proud of being
there. A new building was being built and I could see that this was one of the
nursing homes where people who went to them could be sure they would get the
proper care, not only in terms of food, but in terms of having people who were
really concerned about them.
However, if there is any single institution in this country that symbolizes
the tragic isolation and shameful neglect of older Americans, it is not that kind of
a home, but it is the substandard nursing home, and there are some. Some are
unsanitary. Some are ill-equipped. Some are overcrowded. Some are
understaffed.
Page 7
I am going to be quite blunt. Many of our nursing homes in this country,
as I have indicated, are outstanding, like that Presbyterian Home I saw, and like
others I have seen in California. My 90-year old aunt, my mother's sister, is
still living in one in Riverside, and it is a wonderful home.
But I have been to others that are not. You have been to some. You have
seen them. That is why many of these substandard ones are described as little
more than warehouses for the unwanted, as dumping grounds for the dying. I
have even heard of doctors who refuse to visit some nursing homes because they
get too depressed.
So often it seems that nursing homes seem to keep older people out of
sight and out of mind so that no one will notice their degradation and despair.
Just think, if a doctor gets depressed visiting the home, how depressing it must
be for the people who are in it.
I think we should take notice of this problem. I am confident that our
Federal, State, and local governments, working together with the private sector,
can do much to transform the nursing home for those who need it, and of
course, there are those who do not need it or want it transform it into an
inspiring symbol of comfort and hope.
I have asked the White House Conference to give particular attention to it.
One thing you can be sure, I do notbelieve that Medicare and Medicaid funds
should go to substandard nursing homes in this country and subsidize them.
The ancient Greeks said that we could count no man's life happy until the
end of it. For if any man is to live a good life in the most complete sense, then
his later years must also be years of fulfillment. As we pursue this goal and
break away the barriers to full participation for those who are old today, we will
also break them away for those who will be old tomorrow.
Our Nation has a high obligation to a generation which has given so much
to its service. I think of so many in this audience who have given. I mentioned
this wonderful teacher, 42 years of teaching. You can think of, frankly, some
of the students she probably had to teach. They were probably as difficult as I
was, and I was not very good at music.
I think, for example, of the mother of George Romney, who is here,
and what she has contributed in raising a son who is now a member of the
President's Cabinet, and has been Governor of the State.
I think of what others have contributed, in your various capacities, to
this Nation. The Nation's commitment to its older citizens also grows out of a
more selfish consideration that is this: We need you. We need your experience
We need your perspective. Above all, we need your sense of values, because
Page 8
you know this can be a strong nation militarily, it is the strongest in the world;
it can be a strong nation economically. It is. We are the richest nation in the
world. And it can be an empty shell if we forget that those moral and spiritual
values, to which your generation is so deeply committed, are also there.
I have always felt rather fortunate, particularly fortunate that my own
parents lived long lives. My father lived until he was 75, died in 1956 when I ran
for Vice President the second time. My mother lived until she was 82. They
shared a lot with me when I was young, growing up in a family of five boys,
two of whom died when I was young.
But when we went through those periods, their strength, of course,
built strength in the other boys. But also, they shared a lot with me when I
was older. One little incident proves it. In 1962 I ran for Governor of California
and lost, after having lost for President in 1960. I then moved to New York.
A couple of years later my mother had a very serious operation. She was not
expected to live. I flew to California to see her. The doctor in the hospital
said, before I went into the room, "The best thing you can do is to cheer her
up. Let her know that there is still something worth living for. "
So I went in and talked to my mother, and she was under heavy sedation,
but she perked up, as she always did when somebody came in to see her. Just
as I was ready to leave to go back out to New York, I said, "Now, mother,
don't you give up. " Her eyes flashed, she sort of leaned up in the bed, and she
said, "Don't you give up. 11
I didn't give up. That is why I am here today. Let me tell you something.
It was very tempting to give up -- two defeats, making a lot of money as a lawyer
in New York, not the problems and vicissitudes of politics. If my mother hadn't
said that, I might have given up. She didn't live to see what her advice did.
But that shows what the older generation can do to younger people who
have not been through as much who might give up. You can see why we need you,
why younger people need you, your advice, your wisdom, your strength, your
perspective.
If we allow our society to become fragmented, so that younger Americans
are cut off from older Americans, and each member of our society will also
become fragmented, with young people cut off from the past and older people from
their future.
I spoke last January to an assembly of young people from the University
of Nebraska, young people like the people in thi S band. I called for a new
alliance between the generations -- between youth on the one hand and adults on
the other. But, you know, when I come to think about it, that is not enough.
Today I want to go a step further. I call today for a new alliance in this country
between Americans who are under 65 and those who are over 65.
Page 9
The American community will be incomplete without the full participation
of every American. For each generation has its unique role to play in the
unfolding drama of America.
Let us then put aside the things which would divide us -- suspicion,
condescension, resentment, and indifference. Let us join together across the
Nation and make ourselves an even greater America as we move forward
together.
I have met many world leaders in my travels to over 70 countries in the
world. I did not agree with all of them, but I learned from all of them, young
and old. I remember seeing President de Gaulle of France after he had become
President of France. I had been defeated for office. This was in the year 1963.
He was talking about his own life, the fact that he had led the Free French, kept
up the spirit of France when it was ready to die, after their defeat in World War II,
after he was then repudiated by the French people and had gone into retirement
and then called back into the service as President of France.
Then, and perhaps he was speaking to me as my mother had spoken to
me, he said something about his favorite quotation from Sophocles, the Greek
poet. He said, "One must wait until the evening to see how splendid the day has
been. " I want all of you in this audience to know that we want the evening of your
lives and the evening of all lives of older Americans to be good evenings, fine
evenings. We want you in the evening of your lives to be able to look back and
say, "How splendid the day was. 11
(A plaque was presented to the President by Mrs. Pearce.)
Thank you very much, Mrs. Pearce. I am most grateful for the award.
I hope that what we do, not what we say, will make us deserving of this reward,
the award that we have received here. You have our commitment, certainly, to
do everything that we can to carry out what I tried to outline in my remarks today.
Mrs. Pearce, I want to say to you, after meeting you in the White House
and after hearing you here today, if you had been my music teacher, I might have
been I was just thinking I might have been leading the band, rather than
making the speeches.
Republican
National
Committee.
Aging
July 28, 1971
The Honorable Gerald R. Ford, Jr.
House of Representatives
Washington, D. C.
Dear Congressman Ford:
Recently we put together some notes for Bob
Wilson which he felt were helpful, and I am
therefore enclosing a copy just in case you
might wish to have something of the sort at
a future date. I feel that it contains certain
information that should be transmitted to
Senior Citizen groups at the grassroots level.
I would greatly appreciate your comments.
Sincerely,
Berwood S. Yes Renselver
Bernard S. Van Rensselaer
Director, Senior Citizens Division
map
Enclosure
Dwight D. Eisenhower Republican Center: 310 First Street Southeast, Washington, D.C. 20003. (202) 484-6500.
Republican
National
Committee.
TO:
BOB WILSON
FROM:
BERNARD S. VAN RENSSELAER BSER-
SUBJECT:
SUGGESTED GUIDELINES FOR AN
ADDRESS TO SENIOR CITIZENS
As a background paper from which you might extract some useful
material, I enclose the text of a speech recently delivered by the President to
several thousand Senior Citizens in Chicago.
There are approximately 20, 000, 000 people over sixty-five years of
age in the United States. Women outnumber men in the ratio 139 to 100.
50 percent of the total group are widows, widowers, divorced persons, or
individuals who have never married; and most of these live alone. 25 percent
of the total, approximately 5, 000, 000, live in extreme poverty. The educational
level of my generation, which includes many who were born in an agrarian society
or came to this country as very young children during the peak of immigration at
the beginning of the century, is very low. The median level as of 1970 was
something short of nine grades.
75 percent of the over sixty-five group are made up of the low-middle,
middle-middle, and upper-middle income classes and a relatively small number
of the truly affluent. All of these people are confronted with certain common
problems of aging that have become both intensified and serious as the social
and economic environment has changed during the past twenty years. To
complicate these difficulties, arbitrary retirement at sixty-five has caused great
hardship and has created a widespread sense of total rejection by a middle-age
society. Inflation affects virtually everyone except the extremely well to do; and
since this shows no signs of tapering off, the economic burden upon Senior
itizens has become increasingly oppressive.
The principal problems of older people are income, especially among
the very poor, the increasing cost of health care, housing, transportation,
education, the right to work without severe penalization through loss of Social
Security benefits, work discrimination, discrimination against widowls under
Social Security, and reinvolvement in society.
All of these matters were dealt with comprehensively and thoroughly in
the report of the White House Task Force on Aging, a copy of which should be in
Dwight D. Eisenhower Republican Center: 310 First Street Southeast, Washington, D.C. 20003. (202) 484-6500.
Page 2
your files. If you cannot find it and wish an additional copy, I think we can
spare you one although our supply is extremely limited.
In addition to 20, 000, 000 persons over sixty-five, there are some
9,000, 000 between sixty and sixty-five of whom approximately one-third are
already retired. Persons in this group who are not yet retired are thinking
about it and preparing to adjust to its problems, including the extreme drop
from productive income to retired income. The majority of people in the
older generation having been through a major depression and three world wars
which brought with them inflation, increasingly heavy taxation, and a higher
standard of living do not possess much in the way of retirement savings.
Nearly 50 percent of all older Americans are dependent wholly or to a very
substanial degree upon their Social Security benefits. In other words, remove the
Social Security benefits and many of the low-middle income elderly population
would fall below the poverty line.
You see, therefore, that for political purposes we must consider the
feelings and attitudes of between 29 and 30 million individuals over sixty as a
special problem; and we had better address ourselves to this matter with both
promptness and vigor. Neither political party over the years has concerned
itself very much with Aging and all its social and political implications.
Legislation affecting the elderly has been done on a patchwork basis or for
largely political purposes. No real attempt has been made by Government to
establish a frame of reference within which long-range programs and inter-
mediate measures requiring executive and legislative action could be programed.
Senior Citizens have become a special group with special problems that
must be met in a special way. Certainly any political candidate seeking their
support must develop a completely new approach and devotesome of his time and
attention to working with his elderly constituents. More than that, he must
seek to enlist them in his campaign organization and in his campaigning.
The reason for this lies in the fact that older people conscious of their
loneliness, rejection, and pressing problems both economic and social have
over the past ten years become a class-conscious, organized group. "Senior
Power" must be recognized as a reality. The only question is whether it should
be used constructively through a process of reinvolvement of this potentially
useful sector of our national life or to encourage legislation that would view all
Senior Citizens as the "elderly poor" and reduce them to wards of the state.
This is not an extreme statement because it is the real objective of the powerful
unions, most liberal sociologists, and the union-controlled National Council of
Senior Citizens.
There are four major Senior Citizen membership organizations: The
National Council of Senior Citizens which is based upon approximately two
thousand affiliated Senior Citizens clubs across the country and claims a total
membership of some 2.5 million persons; the American Association of Retired
Page 3
Persons and its affiliate the National Retired Teachers Association with nearly
3, 000, 000 paid-up members, and lastly the National Association of Retired
Federal Employees with a relatively small membership of approximately
150, 000 which belies its influence in both state legislatures and Congress. All
of these groups are growing very rapidly. They all have professional lobbyists
who are both competent and active. They also have their own legislative
programs.
Approximately 70 percent of all persons over sixty vote regularly at
most elections. There was a fall off in 1970 except in California where the
National Council of Senior Citizens ganged up on George Murphy and 73 percent
of them went to the polls. In other states only about 57 percent of the elderly
seem to have gone to the polls. This is evidence of a stay-at-home vote based
upon a refusal to support Democrats and discontent with what they conceived to
be the lack of concern by Republicans with the problems of the older generation.
There is no doubt whatsoever in my mind that if the 1972 election is
close we must not only have a clear majority of the older vote as defined by
Gallup, but the President must run at least 4 percentage points better with
that group than he does among the total electorate. This is predicted upon a
two-party contest, and we have evidence in past elections to support this
conclusion. We do not enjoy this favorable position at the present time
according to the polls, and so our endeavors among Senior Citizens must be
well organized and pushed to the limit. We must begin to do this now and not
wait until next year.
The foregoing is merely for background purposes. I think we can talk
with some confidence about what the Republican Party and especially the
President have been trying to do to meet the needs of Senior Citizens although
it has been given little publicity.
As you will note from the President's speech, he realizes and appreciates
the necessity for a completely new approach to Aging and need of bringing back
our older population into the mainstream of American life with all their resources
of experience, patriotism, values, and their firm belief that free men are
capable of governing themselves without the imposition of a tyrannical and
bureacraticized Government.
As to our recent performance in the area of aging, let me call your
attention to some of the items in HR I that have special meaning for older people.
This bill which has been generally publicized in many circles as a welfare bill
actually contains, as you know, some major amendments to the Social Security
Act. Here are a few items for which I think the President and Republican
leadership can tak credit:
Page 4
1. HR I as passed by the House provides a guaranteed annual
income for the poverty element among Senior Citizens. This
will be welcome because I do assure you that most of these
five million or more Senior Citizens in this group are living
solely on Social Security or what little welfare they can
obtain in most states. Incidentally, I think you should note
that the people in this generation are extraordinarily proud
and want to be independent. Only two million have been
willing to apply for Welfare even though the remaining three
million in the poverty segment are living in shocking quarters,
undernurished, going without medical attention, and suffering
in other directions ways.
2. Automatic increases of Social Security benefits to compensate
for increases of living cost. This has been a Republican
leadership issue since the Coordinating Committee submitted
this recommendation in 1966. Since then, it has been supported
by large numbers of Republican Congressmen from time to
to time but has been vigorously opposed by the Democrats.
I am convinced that this opposition is based upon a desire of
the majority in Congress to keep the older generation in a
situation where they must come hat in hand to Congress
during every election year to seek compensation for the
erosion of their benefits due to past inflation. The President
supported this measure in his 1968 campaign, included it in
a message to Congress, and was instrumental in having it intro-
duced in HR I. Let us make this clear to Senior Citizens.
3. Increase of widow's pensions. Here again the Coordinating
Committee in 1967 recommended an increase of widow's
benefits from 82 1/2 percent to 100 percent of her husband's
prime benefits. This too was opposed by the Democrats but
was supported by the President in 1968 and again submitted
by him as a recommendation to Congress. The women of
this country have complained bitterly about this discrimination
at the hands of our Democratic friends, and our persistence and
the Presidential support can and should justify us in taking
the credit.
4. Increase in the ceiling of the retirement test. The President
in his campaign and in his messages to the Hill committed
himself to increase the ceiling of the amount which a retired
individual between the ages of sixty-five and seventy-two can
earn without forfeiting any part of his Social Security benefits.
He has gone so far as to expres the hope that gradually this
Page 5
ceiling may be totally removed because in his judgment
a free man should have the right to work as long as he
is capable and desirous of doing so without restrictions
of any kind. The unions and Democratic leadership have
strongly opposed any substanial increase of the ceiling.
The reason expressed at the recent meeting of the
Resolutions Committee at the annual Convention of the
National Council of Senior Citizens is that older people
should not be allowed back into the work force and that
after retirement it is the responsibility of the taxpayers
to assure the retiree an adequate standard of living.
Moreover, it was stated by the union representatives
present that if older people were permitted to avail
themselves of the right to work this would promote scab
labor. They suggested that older people should be
restricted to part-time and low-paid, public service
employment. I do not think this is the Republican
philosophy,and in my experience most older people would
not respond to the Democratic view. There is an
increasing desire, with the continuing inflation among
older persons to obtain part- or full-time work at the
normal wage scale without penalization. This has been
apparent to me in my addresses to Senior Citizens'
groups, and the reaction to the President's speech in
Chicago was much the same.
5. I believe that much emphasis should be placed upon the
President's determination to improve the standards and
performance of long-term nursing homes. He made a
very strong point of this in his speech in Chicago and
steps are being taken to implement his policy.
When campaigning among Senior Citizens, I try to leave the impression
with them that both the country and the Republican Party needs their participation
in all forms of activities and that as far as we are concerned there is a real
place for them in the Party structure and campaign programs. It is my feeling
that there should be a Senior Citizens chairman in every congressional district
and that he should be encouraged to develop a steering committee. This has
worked out extremely well in a good many districts where it has been tried out.
Most certainly we should be doing it at the state level. One of the things to
remember is that when we enlist the support of Senior Citizens in our Party
effort we should make it clear that we are ready to listen to them and wish the
benefit of their advice and experience and their knowledge of their own group.
Page 6
I might also add that there were 2, 571, 747 persons over sixty-five years
of age in the state of California during 1970.
The foregoing is simply a series of notes from which I hope you can
pull together some useful speech material. I also hope that it may be a help
to you.
FOR IMMEDIATE RELEASE
Aging
APRIL 6, 1971
WHITE HOUSE CONFERENCE ON AGING
Office of Public Information
and Public Affairs
(202) 755-7824
More than half the older people who filled out a national questionnaire about
their needs said they don't have enough money to make ends meet.
Fifty-five percent said they can't afford to buy the food they like.
More than half said that to get by they must spend less than $200 a month.
Twenty percent said they are limited to less than $100 a month.
And 17. 4 percent answered the question "Do you sometimes feel that you
have nothing to live for? " with a yes.
These facts emerge from a preliminary sampling of questionnaires spon-
sored by the White House Conference on Aging and filled out by 200, 000
Americans age 55 and older. The sampling covered 20 percent of one million
questionnaires distributed last fall at more than 6, 000 community meetings
for the elderly known as Older Americans White House Forums.
The forums were organized as a curtain-raiser for a year of meetings,
regional hearings and local and State White House conferences leading to the
national Conference in Washington the week of next November 28.
"We wanted to give older people the opportunity to speak out on their needs
as they saw them, " said John B. Martin, Special Assistant to the President
for the Aging and Director of the Conference. "They did just that, often
vividly and dramatically. We developed the questionnaires to get opinions
and information about needs and living patterns. "
The 200, 000 sampled represent a fraction of the 20 million Americans who
are 65 and older and the 18 and a half million middle-aged Americans between
55 and 64. They also represent a highly-selected group -- those with the
time and mobility to attend a forum in a senior center, church, school audi-
torium or other place where the elderly could assemble. Eighty percent said
they were retired while 11. 4 percent reported some part-time work.
"The sampling, even so, gives us an indication of how older people feel
about themselves and their problems, " said Mr. Martin. "It emphasized one
OVER
- 2 -
thing we already knew: that the many and complex problems relating to income
are the most important concern of older citizens. Beyond this the figures will
be extrememly useful in helping to pinpoint issues. Many of these issues
already are occupying the attention of thousands of people in pre-Conference
deliberations and they will dominate the discussions at the national Conference."
The preliminary tabulation revealed that 71. 9 percent of the 200, 000 depend
on Social Security payments alone for income while 16. 9 percent also rely on
earnings. Only five percent said they got money from relatives.
Most of those sampled live in cities or small towns where the majority of
forums were held. Eighty-one percent said they are happy where they live.
Almost 50 percent said they own their homes. Of 35.3 percent who live alone,
women outnumbered men three to one. This reflects in part the greater
number of women able to attend the forums but also indicates some facts of
aging: that there are more older women than men and that life expectancy
is increasing at a faster rate for women than men.
Four-fifths of the women said they cook for themselves. Just under half
of the men also said they cook while an equal number said they do not.
Seventy-five percent of the men, however, reported that they do not eat alone.
Transportation, identified by Mr. Martin as "perhaps the sleeper issue"
next to income and health in some areas, shows up in the sampling as an
increasing concern for the elderly. The questionnaires revealed that trans-
portation problems increase with age, especially for those age 75 and older.
One-third of the 200, 000 sampled reported travel problems. A fifth cited
lack of adequate transportation. Another fifth cited "no car" as a problem.
Lack of money for bus fare was noted by 13 percent while 11.4 percent said
they had difficulty in getting on and off public transportation.
Despite the general concern about the health of older Americans, the issue
appeared to be less critical for those able to attend the forums. Only 25
percent said they have health problems that are not getting attention.
A surprising 22.2 percent, however, said they "sometimes feel they are
just not wanted." The feeling was greater for those reporting less income
and education. Similarly, lack of income and education were factors for
those who said they sometimes feel they have "nothing to live for. " Such
feelings also increased with age from 17.4 percent for the overall group to
24 percent for those 85 and older.
The preliminary sampling of questionnaire data was analyzed for the
Conference by the Institute for Interdisciplinary Studies in Minneapolis.
Mr. Martin said the final results of the tabulation will be forwarded to the
States for study in connection with their State White House conferences on
Aging. Most of these are scheduled in May.
92d Congress
1st Session
}
COMMITTEE PRINT
THE NATION'S STAKE IN THE EMPLOYMENT
OF MIDDLE-AGED AND OLDER PERSONS
A WORKING PAPER
PREPARED FOR THE
SPECIAL COMMITTEE ON AGING
UNITED STATES SENATE
JULY 1971
Printed for the use of Special Committee on Aging
U.S. GOVERNMENT PRINTING OFFICE
64-678
WASHINGTON : 1971
For sale by the Superintendent of Documents, U.S. Government Printing Office
Washington, D.C. 20402 - Price 35 cents
Stock Number 5270-1133
CONTENTS
Page
Preface
V
Introduction
1
Employment for Pay
1
Expanding Community Services
2
Bridging the Gap
3
Chapter I. Urgency of the Problem
5
1. The Economic Realities
6
A. High Poverty Incidence
6
B. Unemployment on the Rise
7
SPECIAL COMMITTEE ON AGING
C. Underrepresentation in Training Programs
7
D. Involuntary Early Retirement on Reduced Social Security
FRANK CHURCH, Idaho, Chairman
Benefits
8
HARRISON A. WILLIAMS, JR., New Jersey
WINSTON PROUTY, Vermont
E. Income Findings from the 1968 Social Security Administra-
ALAN BIBLE, Nevada
HIRAM L. FONG, Hawaii
tion Survey
8
JENNINGS RANDOLPH, West Virginia
JACK MILLER, Iowa
2. Department of Labor: Shifting Positions
9
EDMUND S. MUSKIE, Maine
CLIFFORD P. HANSEN, Wyoming
A. Findings: Early Studies
10
FRANK E. MOSS, Utah
PAUL J. FANNIN, Arizona
B. Studies Ignored
12
EDWARD M. KENNEDY, Massachusetts
EDWARD J. GURNEY, Florida
C. Low Visibility for Older People
13
WALTER, F. MONDALE, Minnesota
WILLIAM B. SAXBE, Ohio
D. Operation Mainstream
14
VANCE HARTKE, Indiana
EDWARD W. BROOKE, Massachusetts
3. Legislative Initiatives: Few Results
15
CLAIBORNE PELL, Rhode Island
CHARLES H. PERCY, Illinois
4. Administration Resistance
15
THOMAS F. EAGLETON, Missouri
A. Details on Administration Position
16
WILLIAM E. ORIOL, Staff Director
B. Administration Dims Prospects
19
DAVID A. AFFELDT, Counsel
C. The White House Conference on Aging
22
JOHN GUY MILLER, Minority Staff Director
Chapter II. The Senior AIDES Program: Lessons That Should Be Heeded.
23
1. Scope of Project
23
2. National Organization
25
A. Staffing
25
This Working Paper prepared by the staff of the Senior AIDES program of the
B. Administrative and Supportive Services Provided by the
National Council of Senior Citizens, Inc., Washington, D.C.
National Council of Senior Citizens
26
(II)
C. The NCSC Senior AIDES Project Coordinator-National
Representative at the Local Level
26
D. Additional Staff Responsibilities and Activities
27
E. National Advisory Council
28
3. Local Organization
29
A. Advisory Council
30
B. Relationships with State and Local Employment Services
30
C. Low Administrative Cost.
31
D. Choice of Sponsors
31
E. Selection of Host Agencies
32
4. Senior AIDES Jobs
32
5. Experiences of Four Local Projects
34
A. Description of Project Communities
34
B. Study of Senior AIDES Applicants
35
C. Recruitment
36
D. Services and Programs
38
E. San Diego, California
38
F. Dade County, Florida
39
G. Minneapolis, Minnesota
41
H. Marion County, West Virginia
42
6. Conclusions
43
A. Rules and Regulations Affecting Eligibility of Elderly Persons
for Employment as Senior AIDES
45
B. Flexibility in Hours of Work
46
ITSI
C. Local Advisory Councils
46
D. Community Acceptance
46
E. Role of the U.S. Department of Labor
47
F. Sponsors and Host Agencies
49
G. Project Planning, Administration and Management
49
(III)
IV
Page
Chapter III. Need for a Focal Point
51
lo
Chapter IV. Recommendations for Government Action on Employment
of the Older Worker
53
1. Action by Congress
53
2. Action by the U.S. Department of Labor
54
PREFACE
APPENDIXES
Ecologists and others are gradually persuading many Americans
Appendix 1. Statement on Policies and Organization of the National
that they live in a nation of wasteful conflict with nature. This con-
Council of Senior Citizens
57
cern-which echoes warnings raised by great conservationists at the
Appendix 2. Major Legislation Concerning Employment of the Elderly
turn of the century and before-is encouraging and overdue.
Since 1960
59
But, even as we turn our attention more and more to our environ-
Summary of Major Legislation Regarding Employment of the
Elderly, 1960-70
59
ment, we should pay at least equal heed to the potential and actual
A. Age Discrimination
60
waste of human resources which occurs when technological and
B. Public Welfare and Social Security Amendments
60
economic forces cause widespread dislocations in the labor force of the
C. Manpower Development and Training Act
61
United States.
D. Economic Opportunity Act
61
E. Vocational Rehabilitation
62
In the study which follows, the National Council of Senior Citizens
F. Employment and Training Opportunities Act of 1970
63
deals with a two-stage phenomenon which has severe effects upon
Appendix 3. History of the Senior Community Service Program
66
employment opportunities for older Americans.
1. First White House Conference on Aging
66
The first stage may occur long before retirement age, when the
2. National Senior Service Corps Suggested
66
3. Legislative Bills Introduced
67
worker is in his 50's, 40's, or even late 30's. His problem may begin
A. Bill Passes U.S. Senate
68
with one or more prolonged layoffs. It may be intensified by the shut-
B. Labor Secretary Makes a Commitment
69
down of a plant or the fading-away of an entire industry. Unable to
C. Continuing Efforts To Establish Senior Community Service
relocate in a comparable job at an adequate rate of pay, the worker
Program
70
Appendix 4. The Role of the Public Employment Service (Manpower
may find himself, going steadily down the career ladder. Eventually
Services)
71
he may become underemployed or, reluctantly, a welfare recipient.
1. Constantly Shifting Emphasis
71
Older workers who face the problem described above are growing in
2. Other Handicaps
72
alarming numbers. More than 1 million Americans aged 45 and older are
3. Fault at the Top
73
4. Successful Study
74
now unemployed, 400,000 more than in January 1969. Furthermore,
5. Services to Elderly Decline
74
their periods of unemployment last longer than in any other age group;
6. Ignoring Successful Experience
76
and the prospect of widespread layoffs or shutdowns in key industries of
7. Staff Training Package Program
77
Appendix 5. Suggestions for Improving Reporting of Present Community
the United States today makes it likely that their numbers will increase
Senior Service Employment Programs
79
still further.
Stage two of the problem occurs after retirement begins, and it is
directly related to stage one. Obviously, retirement income-in terms
of Social Security and private pension loss-is directly related to
reductions of income during the work years. But the retiree also faces
another problem; with certain exceptions he cannot find part-time work
which would make good use of his talents and experience while sup-
plementing retirement income.
This shortage of part-time work is caused partially by the threat of
Social Security benefit reductions if work income exceeds $1,680 a year,
and by employer reluctance to adjust procedures to accommodate
older persons working fewer than 40 hours a week. But more funda-
mentally, the shortage is caused by the common attitude-among both
young and old-that the person aged 65 and over has no place in
today's labor market.
To be sure, many persons who have earned retirement do not want
to work in their later years. Many feel they have no reason or desire
to work. Many cannot work because of disability or debility.
Yet, there is good reason to believe that, among the 20 million
Americans of age 65 or over, large numbers of highly qualified and
energetic individuals would welcome employment, if that employment
is satisfying, appropriate, and scaled-down in terms of hours per week.
(V)
VII
VI
Much of that evidence has been gathered in programs related to the
President, Nelson Cruikshank, we extend our thanks for making this
Department of Labor Mainstream Program, including the inspiring
Working Paper possible and specifically to the staff of the Senior
"Green Thumb"¹ effort in 17 States. The Foster Grandparent pro-
AIDES program who prepared this report: William R. Hutton,
gram 2 recently transferred from the Administration on Aging to the
project director; Rose A. Nathenson, deputy project director and
new ACTION volunteer agency, has proved that older persons, work-
director of planning and development; Will C. Connelly, program
ing only 20 hours a week, can cause dramatic improvements in care for
director; Sara Jane Hardin, Charles L. Pray, and Wilmer Wilson, Jr.,
both young and old residents in institutions. The National Council on
field representatives; Peg Savage, field service assistant; and Dorothy
the Aging and the American Association of Retired Persons/National
McCamman, consultant. They have produced a document which
Retired Teachers Association have directed highly significant programs
will be useful before, during, and after the White House Conference
which enlist persons 55 years and over in service programs within their
on Aging.
own communities.
FRANK CHURCH, Chairman
JENNINGS RANDOLPH, Chairman,
The National Council of Senior Citizens operates the largest of
Special Committee on Aging
Subcommittee on Employment and
the Senior Community Service programs under Operation Main-
Retirement Incomes
stream, with projects in 20 cities. The NCSC effort is described in
some detail in this report, partially to give helpful information to
potential directors of similar projects, either public or private, else-
where in the United States.
This report, however, has another far more significant purpose.
As the NCSC authors see it, this report could provide "a blueprint for
the effective administration of a comprehensive, nationwide Senior
Community Service program when the U.S. Congress and the Ad-
ministration will have faced up to, and undertaken to meet, their full
obligation to the elderly poor.
Such a blueprint is especially timely. Legislation to deal with
problems of older workers and to establish a national community
service corps ³ is now nearing the hearing stage in the Senate.
Similar legislation has been introduced in the House of Representa-
tives. The NCSC report can provide helpful insights into issues that
should be explored thoroughly at all hearings on all such bills.
In addition to its blueprint function, the NCSC report also serves
as an informative summary of the sometimes contradictory position
of the U.S. Department of Labor on matters related to employment
among older Americans. One measure of the present situation is the
fact that the Department of Labor is now without a Special Assistant
on Problems and Services for the Elderly. Another measure is that
the Department persistently opposes what it describes as "categori-
cal" programs meant to help the older worker, yet it assigns low
priority to services for older persons in all of its programs, including
manpower training.
In 1971-the year of the second White House Conference on
Aging-such inadequacies warrant concern and attention. The
NCSC, by providing this summary and its own recommendations
has helped to assure that such attention will be paid. To the NCSC
I Sponsored by the National Farmers Union, Green Thumb is a community service employment pro-
gram for low-income individuals 55 and older who have a rural or farming background. A work force of
approximately 3,000 men aged 55 to 94 have helped to beautify America in numerous ways, including plant-
ing over 4 million trees, building roadside parks, and restoring historical sites.
2 The Foster Grandparent program provides employment opportunities for low-income persons 60 and
over to furnish supportive services to dependent, neglected or otherwise disadvantaged children.
3 Senator Thomas F. Eagleton, Chairman of the Subcommittee on Aging of the Labor and Public Wel-
fare Committee, has scheduled two days of hearings on July 29 and 30 the Middle-Aged and Older Workers
Employment Act (S. 1307) and the Older American Community Service Employment Act (S.555). Sponsors
of S. 5include Senators Kennedy (D, Mass.), Bible (D, Nev.), Burdick (D, N. Dak.), Church (D, Idaho),
Cranston (D, Calif.), Eagleton (D, Mo.), Fong (R, Hawaii), Harris (D, Okla.), Hart (D, Mich.), Miller
(R, Iowa), Mondale (D, Minn.), Moss (D, Utah), Muskie (D, Me.), Randoiph (D, W. Va.), Stevenson
(D, III.), and Williams (D, N.J.). Sponsors of S. 1307 include Senators Randolph (D, W. Va.), Bible (D,
Nev.), Church (D, Idaho), Eagleton (D, Mo.), Fong (R, Hawaii), Hartke (D, Ind.), Hughes (D, Iowa,
Kennedy (D, Mass.), Mondale (D, Minn.), Moss (D, Utah), Nelson (D, Wis.), and Williams (D, N.J.).
INTRODUCTION
Many elderly persons, who had been self-supporting and had
contributed to the economic welfare of the country during their
working years, find that they cannot support themselves during what
has been inaccurately termed their "golden years." A youth-oriented
society has shunted them to one side. Many older persons become
dependent on their children, private charity or public welfare for
their everyday living needs-not because they want to be dependent
but because they have no choice. Forced into retirement with limited
pension benefits, they can find few sources of additional income.
In addition, many are psychologically washed out. If they seek jobs,
they are belittled or ignored by employment agencies and employers.
Government manpower and training programs are usually not avail-
able to them. The older unemployed persons feel the strain they are
placing on their children and grandchildren-younger persons who
have financial obligations to their own offspring. For these people,
part-time employment in which they can take pride is a constructive
solution to their problems.
Early in its history, the National Council of Senior Citizens 1
determined that the lack of an adequate and sustained national
policy toward the employment of the elderly was denying millions of
older people the opportunity to support themselves and, at the same
time, depriving the Nation of their skills and talents.
The National Council of Senior Citizens decided to start with the
needs of those in the 55-year-and-over category. The first priority
concerned those who either had no income at all or whose income from
any and all sources (including Social Security and/or private annui-
ties) was SO small as to place them in the poverty index category.
In the area of employment needs the National Council's leadership
recognized that the majority of the elderly were physically unable to
do full-time work. Nevertheless the National Council stressed that
among the some 40 million Americans, 55 years old and over, are
perhaps several millions capable of full-time or part-time employment
if opportunities are developed for them.
EMPLOYMENT FOR PAY
Among the impoverished elderly who are physically able to work,
there are some who desire to remain in or return to the competitive
labor market. This will permit them to add to their current income,
continue to build up an increasing equity in Social Security benefits,
and assure eligibility for Medicare benefits. Others, however, prefer
to work on a part-time basis in a noncompetitive employment situa-
tion. All of these desire and need employment for pay, not employment
as volunteers.
1 The National Council of Senior Citizens has sought to serve not merely as a
vested interest group. Members have formed coalitions with groups of younger
persons to press for reforms in many areas. For a more detailed statement on
organization and goals of the National Council, see Appendix 1.
(1)
64-678-71-2
2
3
EXPANDING COMMUNITY SERVICES
Current limitation of staff and resources has prevented public
and private nonprofit agencies from providing the full range of
For many years, it has been generally acknowledged that necessary
services they were established to provide, and likewise prevented
and legally-provided community services frequently are not available
fully trained professional staff from carrying out their professional
because local governments and local agencies lack adequate funds
responsibilities effectively and efficiently.
and staff to provide these services. The National Council believed
that if funds were provided, most communities would use elderly
The National Council's position is that participation in funding such
persons, who needed additional income, to provide needed community
a program is a Federal responsibility. The costs of local administra-
services.
tion should be borne by local community agencies providing employ-
ment in part-time community service work, while Federal funds are
Some employment possibilities envisioned were teacher aides,
provided to pay the wages and fringe benefits of the elderly employed
social welfare aides, hospital aides, nursing home aides, public health
on the community service jobs.
aides, statistical aides, recreation aides, custodial aides, library aides,
friendly visitor aides, home repair team aides, Meals on Wheels
The National Council believes that the type of jobs to be established
aides, day care center aides and senior center aides.
and filled should not require long periods of formal training; rather,
The National Council argued that if the incentive of federally-
the training should be provided on the job, supplemented by excep-
financed services was provided, forward-looking public and private
tionally good supervision and counseling. Most of the elderly bring
nonprofit agencies in most communities could develop many other
education, skills, and work-habits acquired during years of work that
types of socially useful employment for the elderly.
enable them to adjust easily with little training to new job situations.
Previous studies pointed to several basic needs:
BRIDGING THE GAP
1. The elderly urgently need additional moneys to pro-
vide some income or to supplement the limited funds they
If communities and community agencies undertook employment of
receive from all sources.
older persons which would mesh the needs of the impoverished elderly
Some in this group lack marketable skills; others are victims
with the needs of community services, both the elderly and the com-
of poor health, with diminishing strength and/or meager formal
munity would profit. The National Council of Senior Citizens was
schooling which makes it virtually impossible for them to partici-
convinced that bridging the gap between the service agencies and the
pate in today's competitive labor market. However, within a
elderly should be encouraged, and that this could best be facilitated
protected situation, such as employment in necessary community
by a program of paid, part-time employment of older people in com-
services, they would perform very effectively in emotionally
munity service work.
satisfying, socially useful (not "made work") part-time jobs.
The Council's concept emphasized that the part-time community
This kind of employment would relieve their financial dependency
senior service work should in fact be an employment and not a welfare
and increase their purchasing power.
program. With that in mind, the Council urged that such a program
2. Large numbers of elderly need information about
should be administered by the U.S. Department of Labor rather than
services available in their respective communities to which
by the U.S. Department of Health, Education and Welfare.
they are legally entitled.
This position was based on the following points:
To meet these ends, the National Council of Senior Citizens
The program is properly part of the manpower function, since it
proposed creating community service jobs to provide knowledge
provides employment for pay.
about existing Federal, State and local programs and services
The U.S. Department of Labor should have the positive aspect of
available to the elderly. Once informed, many elderly recipients
creating jobs as well as enforcing antidiscrimination.
would be able, themselves, to seek out the services they needed.
The Senior Community Service Program could be administered
3. Some elderly need personal assistance which can be
most effectively, economically and expertly by the Department of
provided by other elderly through "out-reach" activities.
Labor in light of its present programs and facilities.
Most older people need only minimal training to be able to
ferret out those needing these personal services (medical, food,
Consequently, the National Council of Senior Citizens took the
recreational, etc.), and encourage the use of the services avail-
opportunity to present to the U.S. Department of Labor, a demon-
able. They also can serve as social advocates for the aged, helping
stration project to provide meaningful employment in a vast variety
them to confront more effectively problems facing them. The full-
of community service jobs, to serve the following intent and purposes:
time professionally trained personnel on the staffs of the com-
To open up socially useful, part-time jobs in community serv-
munity agencies utilizing the services of these elderly persons
ices-jobs that, for lack of funds, are not now and normally not
would direct and supervise those providing the assistance.
available;
4. The need for paraprofessional workers in a vast variety
To fill these jobs with persons aged-55-or-over, unemployed or
of community services (social welfare, health, educational, recre-
retired with low incomes, who have difficulty securing employ-
ational cultural, nutritional, among others) had long been evident.
ment in the competitive labor force;
4
To improve the economic, social and psychological well-being of
retired and older unemployed workers by reducing their financial
dependency and increasing their purchasing power through paid
employment in useful jobs;
To demonstrate that the great majority of these people, both
men and women, are employable in meaningful jobs on a part-
CHAPTER I
time basis at minimum costs to the hiring agency and such
employment will be a boon to these persons and the community.
URGENCY OF THE PROBLEM
The National Council of Senior Citizens suggested that the demon-
stration be contracted by the National Council with the U.S. Depart-
"A few years ago, many skeptical persons
ment of Labor, and subcontracted by the National Council to selected
doubted that the elderly could be attracted to
community public and private nonprofit agencies. The latter would
participate in part-time service programs. But a
be required to assume the full cost of local administration while the
number of successful pilot programs-such as
wages and fringe benefits payable to the seniors employed would come
Green Thumb, Green Light, Senior Aides and the
from the Federal money provided in the contract.
Senior Community Service program (See Develop-
Through its board and its affiliated local clubs, the National Council
ments in Aging, 1968 and 1969 for details)-have
notified local communities of the project. The response from viable
amply demonstrated:
agencies wanting to participate was overwhelming. Through this
1. that the programs have been enthusias-
program, popularly called "Senior AIDES," the National Council of
tically accepted by the elderly participants
Senior Citizens took steps to implement its concern to meet the
and by individuals being served, and that
financial needs of impoverished elderly. In a later chapter of this
2. communities that have such programs
report, the project and its results are described and assessed.
eagerly accept the wealth of skill and talents
From this assessment, our report provides a blueprint for the
with which older Americans are SO richly
effective administration of a comprehensive, nationwide Senior
endowed."
Community Service program when the U.S. Congress and the admin-
-U.S. Senate Special Committee on Aging 1.
istration will have faced up to, and undertaken to meet, their full
obligation to the elderly poor.
Millions of older Americans now living in poverty or on the border-
line of poverty are perfectly able to work and want both the psycho-
logical and financial rewards that come from employment.
Some of them have long since retired and need part-time earnings
to supplement Social Security benefits or assistance payments. Some
have been forced into retirement prematurely or have been widowed
before the eligibility age for Social Security benefits or old-age assist-
ance. Others are "older" workers, many still with young children, who
need full-time jobs not only to support their families now but to build
up their rights to future retirement benefits; as family heads, they
lose dignity when employment and training opportunities are available
to their teenage children but not to them.
Economic hardships alone would cause a pressing need for expansion
of employment opportunities for the 50-plus age group of Americans.
But other reasons exist, too.
First is that the Department of Labor has, over the past two
decades, given considerable attention and study to unique needs and
problems of older workers. But the sad truth is that the department-
after providing considerable evidence as to the problems and potential
contribution of this age group-has made only limited progress toward
goals which, at one time or another, have been articulated by spokes-
men for that department. In fact, in some important respects the
department has retrogressed.
1 Economics of Aging: Toward a Full Share in Abundance. A Report by the
Special Committee on Aging, United States Senate, Report No. 91-1548, Dec.
31, 1970 (p. 24).
(5)
7
6
B. UNEMPLOYMENT ON THE RISE
A second additional reason for concern is that within the Congress
several promising proposals have been made within the last decade to
Since January 1969, unemployment for persons 45 and
provide new opportunities for older workers. But here again, despite
older has jumped from 596,000 to 1.8 million, approximately
widespread support and interest, progress has been minimal.
a 71-percent increase.
What follows is a summary of present realities, past history, and a
Once unemployed, the mature worker is more likely to be
recognition of the fact that 1971 could be the year in which legislative
off the job for comparatively long periods. There are now
interest leads to enactment of much-needed law.
224,000 individuals 45 and older who have been unemployed
15 weeks or longer. This represents nearly 33 percent of the
1. THE ECONOMIC REALITIES
total national figure.
And their very long-term joblessness-27 weeks or
Many older Americans live in a two-stage income crisis. The most
pronounced stage, of course, after retirement begins. (Retirees live on
longer-is even more critical. Approximately 120,000
about half of the income earned by those still in the labor force.) But,
middle-aged and older workers have now been unemployed
for more than 6 months, nearly 43 percent of the total
alarmingly often, the crisis begins for many persons in the years just
amount.
before retirement and is intensified in later life.
The U.S. Senate Special Committee on Aging, in its study of the
The "drop-outs". Yet, these statistics-depressing as
Economics of Aging-a study to which the National Council of
they are-only represent a portion of the overall grim
Senior Citizens has made several major contributions-has reached
picture. They do not, for example, reflect the labor force
significant conclusions about the economic realities facing millions of
"drop-outs", those who have given up the active search for
work.
Americans today. Some of the major committee findings follow.
Today, more than 8 million males, 45 and older, have with-
drawn from the work force. Another 20 million women in
A. HIGH POVERTY INCIDENCE
this age category are also not in the labor force. Assuming
A most distressing fact-a disgrace in a Nation pledged to
that just 30 percent of these men (a conservative estimate)
an all-out war on poverty-is that there was an increase in
and 10 percent of these mature women wanted and needed
both the number and the proportion of aged poor between
jobs, this would mean that the "real" unemployment for
1968 and 1969. In 1969, there were approximately 4.8
persons 45-and-older would be approaching 5.4 million-
million people aged 65 and older who were living in poverty,
about 500,000 more than the total "statistical" unemploy-
almost 200,000 more than in 1968. They represented 19.7
ment in the United States now. Moreover, this would
percent of all persons 65 and older in 1969, an alarming rise
represent an unemployment rate in excess of 15 percent for
mature workers.
from the 18.2 percent found for 1968. Alarming, too, was an
increase in the number of poor aged 60 through 64.
If current labor force participation trends continue,
1 out of every 6 men in the 55 to 59 age category will no
Today older Americans are twice as likely to be poor as
longer be in the work force by the time he reaches his 65th
younger persons. One out of every four individuals 65 and
birthday. Ten years ago this ratio was only 1 out of 8.
older-in contrast to one in nine for younger persons-lives
Economics of Aging, pp. 20-21.
in poverty.
Significant also is the fact that there were major increases
C. UNDERREPRESENTATION IN TRAINING PROGRAMS
between 1968 and 1969 in the number of men among the aged
poor. The Working Paper on "Economics of Aging: Toward
Despite the high percent of long-term unemployment
a Full Share in Abundance" called attention to the fact that-
among middle-aged and older workers, they continue to
despite a drop in the overall proportion of the aged who were
be underrepresented in existing manpower programs.
increased in recent years, "reflecting the desire to live inde-
poor-the number of aged women living alone in poverty had
Only a relatively small percent of the Nation's training
and retraining efforts have focused upon persons 45-and-
pendently even at the price of poverty." Now that the data
older. During 1970 they accounted for only 4 percent of all
revealed an increase in poverty among men over 65, one
enrollees in manpower programs.
not help but question whether these are men who-having
been eased out of the labor force before age 65-found it
If the special emphasis youth programs-such as the
necessary to claim permanently reduced Social Security
Job Corps and Neighborhood Youth Corps-are excluded,
benefits even though they had little in other retirement
their participation rate rises to 9.4 percent.
Developments in Aging, 1970, p. 92.
come, thus forming a new group of aged poor.
Economics of Aging, p. 8.
8
9
D. INVOLUNTARY EARLY RETIREMENT ON REDUCED SOCIAL
beneficiaries depended on Social Security for almost their
SECURITY BENEFITS
entire support-for all but $300 per person for the year.
And, significantly, there had been little improvement in
Unemployment for older workers would be even higher if it
this respect since the incomes of aged beneficiaries were
were not for the escape through pre-65 Social Security eligi-
surveyed a decade earlier.
Economics of Aging, p. 9
bility. In recent years approximately 50 percent of all men
claiming Social Security benefits took actuarially reduced
Equally significant for purposes of the present report are these
amounts at an earlier age. Usually, these early retirees have
findings from the same survey on the role of earnings as a source of
lower lifetime earnings or more sporadic work patterns in the
income of the aged:
years preceding their entitlement to Social Security than do
Just over one in four of all aged units had some earnings
those who retire at age 65; they are less likely to be entitled
during 1967, mostly from part-time and low-paying jobs.
to private pensions.
Only about one in 25 was still working and not receiving
Increasingly, high level officials in government and
any retirement benefit.
private industry seem to regard earlier and earlier retirement
The median incomes of the nonbeneficiaries who worked
as inevitable or perhaps even desirable. In many cases-par-
in 1967 were nearly three times as large as the median in-
ticularly for persons in their late fifties or early sixties-early
comes of beneficiaries who did not work (for the married
retirement is chosen as an alternative to long-term joblessness
couples, $7,553 in comparison to $2,628; for the nonmarried
or sporadic underemployment. As a consequence, substantial
persons, $3,464 in comparison to $1,300).
numbers of these involuntarily retirees are accepting the
inevitable, a life of poverty.
Economics of Aging, p. 21
2. DEPARTMENT OF LABOR: SHIFTING POSITIONS
About 50 percent of currently payable awards to men are
to those aged 62 at entitlement. About one in five of them has
In studies conducted at different times over a period of many
not worked for at least 12 months before his entitlement-a
years the U.S. Department of Labor has attempted to find the facts
far higher proportion than among those who became entitled
about the extent and the cause of unemployment of older persons,
at ages 63, 64 and 65. Among the group as a whole, about six
and to experiment with remedies for that situation.
in 10 men filed either in their month of entitlement or within
These studies, carried out by departmental staff, particularly in
3 months in advance of that month. A certain urgency is thus
the Bureau of Employment Security, working with and through the
implied for some of them-almost as if they were in a queue
affiliated State Employment Services, found as far back as 1949,
waiting for the minimum age for retired worker benefits to
that employers arbitrarily defined an "older worker" as one who had
arrive.
Economics of Aging, p. 9
reached between 40 and 45 years of age.
Once a person reached that age, his opportunity for reemployment
E. INCOME FINDINGS FROM THE 1968 SOCIAL SECURITY
at a job equal in skill and pay to the one he had held was not favorable.
ADMINISTRATION SURVEY
Younger people, at lower rates of pay, were sought and hired-
regardless of the fact that the older person was skilled and trained,
The Senate committee report on Economics of Aging highlighted
physically fit, and mentally at his full capacity. His opportunities
the following findings of the Social Security Administration survey
varied in relation to the availability of people in the labor market,
of the population aged 65-and-older:
and the kind of job and pay he was willing to accept.
Of all aged units, 44 percent had income below the poverty
The studies indicated that when the older person had exhausted
level in 1967 ($2,020 for couples and $1,600 for nonmarried
his unemployment benefits, he would accept employment in lesser
persons). Another 11 percent would have been classified as
skill jobs and at less pay than he had received. However, this situation
"near poor."
was somewhat alleviated as the unionization of industry strengthened
Only about one-third of the aged units had incomes large
and seniority protection was written into labor contracts.
enough to provide at least a moderate level of living as
The studies and the concern, in general, centered on the persons
defined by the BLS budget for a retired couple ($3,940).
who had been in the labor force, who were between 45 and 65 years
Even of the couples receiving Social Security benefits,
of age, and who sought and needed full-time employment in the
more than one-fifth (22 percent) had total incomes of less
competitive labor force. These persons at their prime, needed income
than $2,020 and would therefore have been classified as
to support and maintain growing families, and to build up equity in
poor on the basis of the 1967 income threshold developed by
their pension programs.
the Social Security Administration. Nearly three out of
Very little, if any, serious attention was paid to the income needs
every five nonmarried beneficiaries had income below the
of those who were already at the so-called "retirement age," or close
proverty threshold of $1,600.
to it. These were the persons who had worked regularly, who had
The Social Security benefit remains the major source of
tried-frequently unsuccessfully-to "save" for their "old age."
income for most retirees. One-fourth of the aged couples on
These were also widows who had never worked for wages, or who had
the rolls at the end of 1967 and two-fifths of the nonmarried
64-678-71-3
10
11
held paying jobs for a short period of time, before marrying. Pre-
ADVANTAGES OF OLDER WORKERS
sumably, the fact that they were, or would soon be, eligible for Social
Security benefits or other pension plans, negated concern that they
The paper reports that: "A committee of insurance and pension
would have meager incomes which would need to be supplemented
experts, convened for this purpose, concluded in a report published by
if they were to do more than merely exist.
the department that the cost differential, attributable to pensions and
The National Council of Senior Citizens found little evidence of
other benefits, in the long run was insignificant and was often more
in-depth studies by the U.S. Department of Labor to determine need
than offset by the capabilities, experience and stability of older
for paid employment by this group of elderly persons.
workers."
A paper, prepared for the 1961 White House Conference on Aging by
Studies of the relative performance of younger and older workers
the Labor Department's Bureau of Employment Security, sums up the
in production jobs in industry and in clerical fields, conducted in
fact-finding during the decade from 1950 to 1960. The U.S. Depart-
1956, 1957 and 1959, indicated that group output of older workers
ment of Labor undertook extensive research and studies during this
up to age 65 was substantially comparable, that significant proportions
period that gave evidence of its growing concern with the problem.
of older workers exceeded the average output of younger age groups,
The results achieved, while directed primarily to serving the "older
and that older workers often had greater consistency in day-to-day
worker", also served the needs of all the elderly, and hence warrant
production.
discussion here.
OLDER WORKERS WANT OPTIONS
A. FINDINGS: EARLY STUDIES
The essential finding that productivity varies widely among workers
The paper notes that the public employment services, coordinated
of all ages, and that older workers as a group show little or no varia-
through the bureau, engaged in a number of fact-finding studies, that
tion from this generalization, confirmed earlier surveys of employer
indicate an "initial study was done in 1950 in local offices of five cities
opinion by the National Association of Manufacturers and others.
(New York, N.Y.; Columbus, Ohio; Lancaster, Pa.; Houston, Tex.;
They largely were supported by intensive case studies done by the
and Los Angeles, Calif.). In 1956, a more comprehensive study, which
Nuffield Unit in England during the decade. Their observations,
included an analysis of employer practices as well as the experiences
while indicating declines in certain abilities, such as coordination and
of job applicants at public employment offices, was undertaken in
the dexterities, indicated that overall job performance is largely
seven areas (Worcester, Mass.; Philadelphia, Pa.; Miami, Fla.;
sustained by maintenance of intellectual powers and by compensating
Detroit, Mich.; St. Paul-Minneapolis, Minn.; Los Angeles, Calif.; and
adjustments in the method of carrying on job tasks.
Seattle, Wash.). Its design was developed cooperatively with the
Many of the findings of the Department of Labor's studies were
University of Minnesota, which had previously done studies of the
confirmed in studies of hiring practices of employers in the San
utilization of older employees."
Francisco area conducted by the University of California during
1954-56 and again in 1959. Among their findings were that in larger,
AGE DISCRIMINATION EVIDENT
long established firms with stable employment, age restrictions were
greater and, that there appeared to be a close relationship between
It is important to note that this "Seven City" study substantiated
hiring practices, employee utilization, and retirement practices.
earlier findings and uncovered new facts.
Among other things, it indicated that age discrimination was evi-
ELDERLY COUNSELING IMPROVED
dent-that over 40 percent of the job openings restricted employment
to workers under 45; that most of the discrimination was in white-
As a result of the studies, an expanded and improved program of
collar occupations and by firms employing more than 500 workers;
specialized counseling and placement services for older workers in the
and that the unemployment of the 45-and-older workers was of longer
nationwide public employment service system was undertaken in 1956.
duration than that of the worker under 45.
The department reported that: "While programs were started
earlier in a few States (e.g., New York in 1950), the growth was
The study showed the effect of giving older applicants routine
sporadic. In 1956 special Federal funds were allocated for the appoint-
service as contrasted with specialized job placement and employment
ment of State older-worker specialists and local office specialists in the
counseling. The paper states that: "Success in job finding using the
major cities of each State employment service. Two States-New York
latter method was four times as great. Techniques such as group
and California-augmented the earmarked Federal funds to provide
guidance sessions for older job seekers and use of appitude tests were
additional older worker specialists.'
tried out and evaluated."
Based on the earlier study findings, operating manuals were pre-
While these studies were going on, the department began a search
pared and a large scale training program was conducted for agency
for facts which would counteract some of the reasons given for not hir-
personnel. Services included individual counseling to aid in vocational
ing the older people in our population-lessening of physical capacity,
choice and adjustment, group counseling to identify personal factors,
lessened productivity, increased pension and fringe benefits.
attitudes and shortcomings inhibiting employment, solicitation of
openings for qualified job seekers, and active help in finding a suitable:
job.
12
13
The results were impressive. During fiscal years 1958 to 1960, the
report shows that annual placements of persons 45-and-over through
The position of the administration, as represented by the U.S.
these agencies rose from 1 million to 1.2 million. From 115,000 to
Department of Labor, is to move away from the categorical approach
120,000 job applicants were counseled in each of these States.
in the funding for the delivery of services to the older segment of our
Subsequent studies, to the extent they have been made, have not
population.
negated the findings and conclusions that were revealed by the studies
A statement by the Special Assistant for Older Workers in the de-
in the 1950's.
partment's Manpower Administration before two of the subcom-
B. STUDIES IGNORED
mittes of the Senate Special Committee on Aging on July 25, 1968,
in addition to citing statistics, noted that "once unemployed, older
Although even limited implementation of the findings of these
workers remain unemployed substantially longer than younger workers,
studies brought impressive results in assisting the job-finding efforts
and some may never find a job again. While the numbers of men
of older persons, the U.S. Department of Labor's actions lead to the
unemployed for very long periods are comparatively small, more of
conclusion that it does not intend to utilize the results of its own
them are middle-aged and older workers. To these individual men,
studies in continuing plans to deliver services effectively.
the total personal impact can be traumatic; the consequences most
For example, the 1970 report, Economics of Aging, of the Senate
serious."
Special Committee on Aging (Report No. 91-1548, 91st Congress, 2d
It further notes that the "older worker would like to have options;
Session, pps. 168-169) notes that in testimony on December 18-19,
1969, a former director of the U.S. Employment Service, when asked
to work or to retire, to work full time or part time; to work for pay or
to be a volunteer. Workers at retirement age may have these options.
what level of government determines that an employment security
However, many do not in view of low income and compulsory retire-
office will have older worker specialists, responded as follows:
ment. The worker below retirement age does not have that option
Well, essentially the decision is a funding decision, at least
today, unless he takes public assistance. He must find employment."
that is the way the Federal-State employment security system
And that applies to the person between 55 and retirement age, as well
works, since it is 100-percent federally funded.
as the one in the older worker age bracket, 45 to 65.
There was a time when, through the efforts of the House
Appropriations Subcommittee for Labor and Health, Educa-
C. Low VISIBILITY FOR OLDER PEOPLE
tion and Welfare, we had an identifiable kind of earmarked
budget for older worker specialists which we, in turn, inter-
The Special Assistant, in his 1968 statement, called attention to the
preted to the States and mandated in terms of their responsi-
unfinished business at hand, namely, the need to clear the obstacles
bility for setting up and training this kind of personnel. That
which confront the older job seeker by eliminating arbitrary discrimi-
earmarking concept has been dropped for a variety of reasons,
natory practices and by modifying other policies and practices which
not the least of which is that we are in the process of trying to
work against him; to increase the availability of jobs by finding and
integrate and consolidate three or four different streams of
stimulating new job opportunities, including employment in needed
funding in the entire program.
community services to supplement income and facilitate the transition
It was felt that this categorical kind of funding for youth on
to full retirement or the return to full-time work; to improve and ex-
the one hand, and older workers on the other, was inconsistent
tend programs to facilitate the matching of skills and jobs, and to
with the flexible use of the funds.
cushion the impact of unemployment; to pave the way for older work-
Now we will have a sizable corps of older worker specialists
ers, employers, labor unions and educational institutions to prepare for
in the States and we are trying in the redesign of services, that
and adjust to foreseeable changes in technology, in educational re-
I described rather generally this morning, to put those people
quirements, personnel practices, and to prepare for satisfying retire-
to work where we feel their expertise is most badly needed,
ment.
and that is in the process of providing support to older job-
He further noted findings which led to the conclusion that there is
seekers in the business of making the right kind of judgments
low visibility for older people. They are unemployed, but they are
and decisions about what kind of work they should be looking
not clumped together; they don't organize, they don't speak up,
for and where and how they should look.
and there is nobody to speak for them. They are not visible. Neighbors
don't know about them; people generally do not know about them;
CATEGORICAL APPROACH DENIED
a crisis exists in a man's life and no one seems to know or care.
The National Council of Senior Citizens finds no evidence of any
At this time the National Council of Senior Citizens can find no
sustained action-through studies or followup on studies by the U.S.
official information that the appointment of identifiable staff to spe-
Department of Labor since 1968, to move aggressively to recognize
cialize in the delivery of services to older workers, by public employ-
the needs of the older worker, particularly those over 55, for paid
ment offices is being required or encouraged.
employment as well as age antidiscrimination in employment
14
15
Testimony presented to the Senate Special Committee on Aging
According to the report the purpose of Operation Mainstream is
("Economics of Aging: Toward a Full Share in Abundance" Dec. 31,
"the provision of work-training and employment projects, augmented
1970) describes quite definitely the failure of the U.S. Department of
by necessary supportive services designed to provide permanent jobs
Labor-or, in fact, the Administration on Aging in HEW-to under-
at decent wages for adults with a history of chronic unemployment."
take seriously the necessary studies on the employment needs of the
Operation Mainstream had several projects exclusively for the
older worker and of those no longer considered as active workers.
elderly, with a maximum enrollment opportunity of 4,628 in June
Representatives of organized senior citizens groups as well as staff
1970, and "an additional 900 enrollment slots for workers 45-and-over
of the U.S. Department of Labor, specifically or by implication, have
in the regular Mainstream program."
indicated over the years the need for such studies and for aggressive
In brief, the OEO manpower program that has had "by far the
and continuous followup to implement the findings of earlier studies.
most significant impact on the elderly of any of OEO's manpower
It is pertinent to note that the Age Discrimination in Employment
programs" helped fewer than 6,000 elderly persons in 1970, the year
Act, passed in 1967, mandated the U.S. Department of Labor to
of its largest funding.
undertake studies in this area (Sec. 5 of the act). But, as of Dec. 31,
1970, this mandate had not been fulfilled. The Senate Special Com-
Operation Mainstream, if it is to fulfill its purposes, must help the
mittee on Aging, in its December 31, 1970, report, noted (p. 168)
elderly, through large-scale specially designed programs. Then their
this failure and recommended that action be taken without further
effectiveness should be measured objectively. Then long-term pro-
grams based on these findings, should be put into operation.
delay to fulfill this requirement.
Basically, at this time, the National Council of Senior Citizens
It stated that:
reiterates again its belief that further studies are needed; but, that
Testimony by representatives of the Labor Department
studies to determine needs alone will not suffice. An aggressive,
casts doubt on whether sufficient staff effort was being
categorical program is essential. Then, when that has been in opera-
exerted to implement the objectives of the Age Discrimina-
tion, studies to determine and improve its effectiveness will be in
tion in Employment Act of 1967-the department has 1,000
order.
investigators working on all aspects of the Fair Labor
Standards Act, spending "not over 10 percent of their
3. LEGISLATIVE INITIATIVES: FEW RESULTS
time on age discrimination," or "an equivalent of 100 men
Congressional concern over problems of older workers-and the
trying to implement this on a national scale" (pp. 178-79)
need for a community service program-has been expressed with
Also, the study of institutional and other arrangements
giving rise to involuntary retirement, required by the
increasing frequency within recent years. But, despite the often
Age Discrimination Act of 1967, had not yet been
eloquent testimony given in support of legislation in this area, the
most concrete results thus far have been: 2
undertaken.
A growing body of evidence on the desirability of community
On January 14, 1971, the Manpower Administration of the U.S.
service by older workers, but little application of the lessons
Department of Labor indicated that action was finally underway to
already learned.
make the required studies. A communication to a staff member of
An Age Discrimination Act which fails to meet even the most
the Senate Special Committee on Aging, advised that a member of
limited of its objectives.
the Assistant Secretary's office was "coordinating the development
Some recognition-in the Economic Opportunity Act amend-
of a research program to meet the requirements of Sec. 5 of the Age
ments, in manpower development legislation, in public welfare
Discrimination and Employment Act of 1967. The research program
provisions, and elsewhere-of the need for employment oppor-
is now in the planning stage." This 4 years after the legislation had
tunities for the elderly, but relatively little actual commitment
been passed.
and allotment of resources.
This is another indication that unless there is a visible unit, in the
Manpower Administration, with sufficient stature to secure action,
4. ADMINISTRATION RESISTANCE
progress will not be made, regardless of congressional intent.
In recognition of the vital need for establishing a national program
D. OPERATION MAINSTREAM
to continue and broaden the excellent work already amply proven on
a demonstration basis, 15 Senators joined Senators Edward M.
In its annual report for 1970 to the U.S. Senate Special Committee
Kennedy and Harrison A. Williams, Jr., in March 1970 as sponsors
on Aging, the Office of Economic Opportunity states that of its three
of S. 3604, the Older American Community Service Employment Act.
manpower programs-the Concentrated Employment program, New
An identical bill (S. 555) was introduced early in the 92d Congress
Careers, and Operation Mainstream (the administration and opera-
with the strong bipartisan support of 16 Senators.
tions of the programs have been delegated to the Department of
Labor)-Operation Mainstream has had "by far, the most significant
2 For a fuller discussion of major legislation concerning the employment of
the elderly since 1960, see Appendix 2 of this report.
impact on the elderly."
17
16
The National Council of Senior Citizens recognizes without reserva-
The proposed legislation would authorize new opportunities in
needed community services for low-income persons aged 55-and-
tion the value of programs that enable older people to serve in volun-
teer efforts because their out-of-pocket expenses-bus fares, lunches,
older, and would provide a basis for converting the existing successful
costs of refurbishing their clothes-are reimbursed. We have lent
pilot projects into a permanent, ongoing national program. A 2-year
support to the implementation of RSVP at a time when the admin-
funding authorization of $95 million would provide new service oppor-
istration, after the proposed legislation was on the books, failed to
tunities for approximately 37,000 older persons-more than seven
press for the funding needed to translate the program from words to
times as many as provided under the U.S. Department of Labor's
"Operation Mainstream" in 1970.
reality. But not all older people-in fact probably only a small minor-
Three days of hearings on S. 3604 were held in 1970 by the Special
ity-can afford to engage in nonpaid employment even though the
Subcommittee on Aging of the Senate Labor and Public Welfare
expenses of the service are reimbursed.
Committee. At these hearings in Fall River, Mass. and Washington,
There is also new cause for concern. Current administration plans
D.C., witnesses were in virtually unanimous support of the bill.
call for a transfer of the Foster Grandparent program, which is an
employment program, and RSVP-strictly a volunteer program-to a
The administration, however, raised arguments based partially on
new voluntary Government agency known as ACTION and this
opposition to "categorical programs," as described earlier in this
may curtail the opportunities for part-time employment of the elderly
report. The administration position, however, was based on other
arguments which are examined in some detail on the pages that follow
foster grandparents who cannot afford to volunteer their services.
because of the light that can be thrown, not only upon the fate of
IMPROVEMENTS IN SOCIAL SECURITY AND WELFARE
S. 3604, but upon positions taken earlier on other issues related to
older workers.
The following is quoted from the Secretary's letter:
A. DETAILS ON ADMINISTRATION POSITION
In the Family Assistance Act (H.R. 16311)
the
administration has proposed a bill that could bring the
The administration, while perhaps not questioning the "values-
income of all older couples well over the poverty line and
both psychological and financial-derived by older people engaged in
all single older persons up to 80 percent of that income level.
meaningful community service opportunities," has nevertheless ques-
Moreover, under Social Security legislation enacted last
tioned the need for the nationwide program proposed by S. 3604,
December and additional proposals currently pending before
the Older American Community Service Employment Act.
the Senate (H.R. 17550), the administration will have in-
The administration's opposition to the enactment of S. 3604, set
creased the incomes of beneficiaries by 20 percent. In addi-
forth in detail in a letter of July 7, 1970, from the Secretary of Labor,
tion to these improvements, the administration has endorsed
is essentially this:
the automatic cost-of-living adjustments and the liberaliza-
tion of the retirement test now contained in the bill. All of
This administration believes that through the current and
these gains are elements in the administration's overall
proposed efforts described herein and through a commitment
to increase the participation of older persons in American
income strategy, which in our view will eliminate or
life (which we hope will be fostered by the forthcoming
markedly alleviate the symptoms of poverty among older
White House Conference on Aging) the purpose of S. 3604
persons.
will be realized and its enactment will not be necessary.
The National Council of Senior Citizens is also a strong supporter
The National Council of Senior Citizens seriously questions the
of legislation to assure that all Americans, whether aged or not, have
realism of counting on the efforts set forth by the administration in
incomes above the poverty line.
this letter of opposition to S. 3604.
That an improvement in welfare payments is not, however, an
The substance of the administration's claims to activities that
acceptable alternative to the potential of a Community Service pro-
make the Older American Community Service Act unnecessary there-
gram is clear from just two excerpts from testimony taken by con-
fore merits detailed consideration.
gressional committees. From a report of a Senior AIDES project:
Nearly 2 years participation has demonstrated:
FOSTER GRANDPARENT PROGRAM AND RETIRED SENIOR VOLUNTEER
1. That there are many older persons who want the
PROGRAM (RSVP)
self-respect which comes from supporting themselves and
not living off others, either their families or their commu-
The Secretary of Labor's letter says:
nity. Sixteen of our 30 aides, 53.3 percent, could receive
In the 1969 amendments to the Older Americans Act which
more from welfare than they do working on this program.
were enacted last year, the Foster Grandparent program-
There is now dignity and purpose in their lives.
providing a new role for retired persons-was given perma-
3 The transfer of these two programs to ACTION took place on July 1, 1971.
nent status and the Retired Senior Volunteer program, a new
4
Position Statement of the Senior AIDES Project in New Bedford, Mass.,
program to reimburse older volunteers for their out-of-pocket
p. 27 of Hearings on S. 3604 before the Special Subcommittee on the Aging of the
expenses, was authorized.
Committee on Labor and Public Welfare.
64-678-71-4
18
19
And from a national director of programs to provide job opportuni-
2. The Department of Health, Education and Welfare
ties for older persons:
will use research and demonstration funds to establish
I am talking about the jobs which can be provided, and I
one model Retired Senior Volunteer program project
know of not a single person that I have met on public welfare
in each Federal region during fiscal year 1971.
who was not disabled who would not prefer to have a job. The
3. We will attempt to effect the recommendation of
poor continue to say in every community action agency, in
the President's Task Force on Aging that Federal
every program we have ever created, that what they want is a
agencies cooperate in designing new paid and unpaid
job if they are physically and mentally able. They don't want
roles for older persons in the local delivery of services
anything else. We keep jamming this other stuff down their
and in building such roles into local delivery by:
throats, welfare and all the rest, and what is really needed is
a. Studying methods of making greater use of
an opportunity for a job, a chance to be useful, a chance to be
older persons in Federal grant-in-aid programs,
productive. Goodness knows, we could put a lot of these
particularly in the human services field;
people to work tomorrow on the problems of environment,
b. Using older persons in the administration of
problems of pollution, a whole host of jobs.
the Family Assistance Plan; and
Economics of Aging, p. 171
c. Developing models of new roles for older
persons in such Federal programs as the proposed
The National Council of Senior Citizens also enthusiastically
Social Service Amendments to the Social Security
supports an increase in Social Security benefits accompanied by
Act.
improvements in the retirement test. But, the Council would again
4. A section in the proposed Manpower Training Act
point out that these proposals of the administration merely keep
amends the Economic Opportunity Act to enable the
up with rising price levels-and consequently just as many aged
Office of Economic Opportunity to expand and improve
stay just as poor as they now are. This would not be the solution
research, experimental, and developmental activities
even if older persons sought employment only for financial reasons—
focused on the employment and employment-related
and it's clear that this is not the case. The social and psychological
values are at least equally important.
problems of the economically disadvantaged, including
persons over 55. This authority will be used to develop
Furthermore, regardless of what is done to improve the level of
additional new roles for the low-income elderly.
income provided by old-age assistance and Social Security, there
will still be countless older people who are too old to compete for
B. ADMINISTRATION DIMS PROSPECTS
full-time jobs but who are too young to qualify for old-age assistance
or Social Security retirement benefits. For them-many are women
In appendix 2 of this report, the National Council of Senior Citizens
widowed in their late fifties; many are workers eased out of the labor
discusses the possibilities of the Manpower Act-vetoed by the Pres-
force prematurely-an opportunity for community service employ-
ident in the closing days of the 91st Congress-with special reference
ment provides the only acceptable solution while waiting for eligibility
to "older workers" who need employment in order to survive now in
for old-age payments. For the Nation too, this solution to this aspect
a money economy as well as to build up rights to future retirement
of the problem is important because it alleviates pressures for an ever-
benefits.
earlier eligibility age under our public income-maintenance programs
Here it is sufficient to point out that the administration's opposi-
for the aged.
tion to categorical programs seriously dims the employment prospects
MANPOWER TRAINING ACT
of older workers. There is presently no incumbent in a position of
Special Assistant for Older Worker programs anywhere in the U.S.
In addition, the administration's opposition to S. 3604 rested
Department of Labor. On January 15, 1971, the U.S. Department of
heavily on the proposed Manpower Training Act. Again quoting
Labor provided the Senate Special Committee on Aging-in response
from the letter of the Secretary of Labor:
to a request from a committee staff member-with a table concerning
Because S. 3604 would establish yet another categorical
older persons in Manpower programs. Its transmittal noted that the
grant program, increase the duplication of effort, and
totals "include the Neighborhood Youth Corps and Job Corps pro-
further complicate the existing range of national manpower
grams which are youth programs. If one excludes these youth pro-
programs, we oppose its enactment. We believe, however,
grams from the total, the percentage of participants 45-and-over
that there are several constructive steps that the admin-
rises to 9.4 percent from the 4 percent shown on the table."
istration can take to expand the kinds of opportunities to
Ironically, too, the transmittal advises that, at this late date, a
which S. 3604 is directed:
member of the Assistant Secretary's office is "coordinating the de-
1. Under the authority of the Manpower Training
velopment of a research program to meet the requirements of Sec. 5
Act, we will develop a program model focused on the
of the Age Discrimination and Employment Act of 1967. The research
employment of older persons in community services
program is now in the planning stage."
for use by the States after the act is signed into law.
Once again it seems that only when official pressure is applied does
action follow.
20
21
OTHER "CATEGORICAL" OFFICES
In view of what has not happened, concerned persons have valid
Representatives of the National Council are told that the adminis-
cause to question whether the intention expressed in Secretary
tration and the U.S. Department of Labor are opposed to "categorical"
Hodgson's letter will be implemented unless there is a specifically
programs. This may be so, but the fact of the matter is that a review
assigned and designated staff charged with responsibility to pro-
of the 1970 Congressional Directory shows the following categorical
vide aggressive leadership within the department to ensure that efforts
or "interest" groups represented by identifiable organization struc-
to bring the impoverished elderly into the mainstream of economic
life materialize.
ture in the department:
The current situation offers virtually no hope to our more elderly
Secretary's Office
people who need employment opportunities for psychological satis-
Office of Equal Employment Opportunity
faction as much as-or more than-for financial remuneration. These
Employ the Handicapped
older people do not want to compete with younger workers who may
Manpower Administration
well be their own sons and daughters supporting their own grand-
Farm Labor Service
children. But they want to do a job that needs doing. They-and the
Veterans Employment Service
communities of our Nation-are shortchanged if this opportunity is
Labor-Management Service
not provided through an Older American Community Service Act.
Office of Veterans Reemployment Rights
Wage and Labor Standards
MYSTERY OF TITLE 1-E FUNDS
Women's Bureau
To the best of National Council of Senior Citizen's information
There have been evidences that unless such responsibility is as-
(since to date a current organizational chart of the Manpower Admin-
signed and surrounded with appropriate prestige and authority, little
istration has not been secured) within the Manpower Administration
if anything constructive will be done for the elderly poor. Attention is
is a major organizational division entitled "Program Delivery Sup-
called to the fact that the sum of $10 million of Economic Opportuni-
port." There are units within which are specifically designated as
ties Act Title 1-E Operation Mainstream funds was available for
"special worker group services" for the handicapped and older
distribution in the closing weeks of fiscal year 1970. In June, the agen-
workers. This would imply a "categorical" approach. The inconsis-
cies engaged in the Community Senior Service Demonstration projects
tencies in theory and practice are evident.
had met with the director of the OEO and the Under Secretary of
Thus, many persons and organizations concerned with establish-
Labor to present plans and a request for funds for the expansion of the
ment of programs and services for the elderly within the USDOL
ongoing projects.
question whether there is any real commitment by the National
The best that could be secured was the information that a decision
Administration and its representatives to this "category" of our
would be made before the close of the fiscal year, as to how this $10
society.
million would be used, and what action would be taken in response to
This question is all the more disturbing in view of the July 7, 1970,
the request of the concerned national organizations.
letter to the chairman of the Senate Committee on Labor and Public
Some of the national agencies have learned by various "grape-
Welfare, signed by Secretary Hodgson and representing the views
vines" that on June 19, 1970, via TWX (Teletypewriter Exchange
of DOL, Health, Education and Welfare, and the Office of Economic
Services), all Regional USDOL Manpower Administrators were
Opportunity, related to S. 3604, the "Older American Community
authorized to sign contracts for EOA Title 1-E Operation Main-
Service Employment Act."
stream up to the amounts listed in the TWX, without additional
The letter stated:
National Office (e.g., Manpower Administration) approval. The TWX
the administration proposed to decategorize and
also advised that these funds were to be obligated by June 30, 1970.
consolidate existing manpower programs, and provide
So far as the National Council of Senior Citizens has been able to
flexible funding for a comprehensive manpower program in
ascertain, no written instructions were given the Manpower Admin-
each State and area
We believe that the interests of
istrators concerning the use of these funds for programs predominantly
older workers, as well as other people with specialized man-
for persons 55 years of age and over. Nor were the concerned national
power needs, can best be served by giving the initiative in
organizations advised officially, to this date, how the $10 million was
manpower program administration to the States and local-
to be used, or why their requests involving use of these moneys were
ities
rather than to continue the proliferation of tightly
were not approved.
drawn categorical programs at the national level
We
The exchange of correspondence between Senator Gaylord Nelson
intend that the employment possibilities for older persons
(July 21, 1970) and Malcolm R. Lovell, Jr., Assistant Secretary-
which Operation Mainstream has demonstrated will not be
Designate for Manpower (August 19, 1970) indicates that the Man-
lost
power Administration did not consider it necessary applying the
Meantime, President Nixon vetoed the 1970 Manpower and Train-
criteria in the section of the act which cited among the beneficiaries,
ing Bill, which had been passed by both Houses of Congress and which
persons unable to secure appropriate employment because of age,
would have encouraged employment programs for the elderly.
physical conditions, etc. We have seen no public information to
22
indicate the extent to which the contracts signed provided specifically
for employment or training of persons 55 years of age and over.
C. THE WHITE HOUSE CONFERENCE ON AGING
The comments above make all too clear that the National Council
CHAPTER II
of Senior Citizens is not impressed by the administration's claim that
its current and proposed efforts reduce the need for a program to
THE SENIOR AIDES PROGRAM:
provide part-time community service employment for the elderly.
Nor is the National Council optimistic about the administration's
LESSONS THAT SHOULD BE HEEDED
"hope" that the forthcoming White House Conference on Aging will
make specific action unnecessary by fostering a "commitment to
Thus far in this report, special attention has been paid to the
increase the participation of older persons in American life"-though
employment problems facing SO many older Americans today, and the
the Council's representatives will join enthusiastically with all who
failure of public policy and programs to deal with those problems.
seek a serious commitment to meet the employment problems of the
But, despite the magnitude of the challenge that must yet be met,
much can be learned from the practical experience that has already
elderly. The National Council of Senior Citizens detailed its concerns about
been gathered in the pilot Senior AIDE programs conducted by the
the White House Conference in testifying at the March 25, 1971,
National Council of Senior Citizens as one of several demonstration
hearing of the Senate Special Committee on Aging and the Subcom-
programs authorized by the Department of Labor in 1967-68.¹
mittee on Aging of the Senate Committee on Labor and Public Wel-
Here, in some detail, is a report on progress made under that
fare. The National Council's testimony was directed to early evidences
program.
that the conference was being used as a political forum for the partisan
1. SCOPE OF PROJECT
advantage of the administration.
On June 21, 1968 the National Council of Senior Citizens signed a
The National Council now adds a further specific concern, most
contract with the U.S. Department of Labor to sponsor a senior com-
germane to the substance of this report.
The National Council has carefully studied the work books issued by
munity service program. The National Council chose to call the pro-
gram Senior AIDES (the latter word being an acronym: Alert,
the White House Conference on Aging which are intended to guide-
Industrious, Dedicated, Energetic, Service). The program had two
in actual practice, to dictate-the discussion of issues at the com-
primary objectives:
munity conferences that provide the input for State conferences and
thus for the White House Conference itself.
1. To provide socially useful part-time employment for low-
In the work book on Employment there is absolutely no recognition
income elderly persons;
of the role of part-time noncompetitive employment opportunities
2. To improve and expand existing community services-and
for the elderly. Nor is this significant gap filled by the background
to create new services.
data or the identification of issues presented in the work books on
Underlying these objectives was the intent to develop a model for
Retirement and on Income.
an effective national senior community service program.
The National Council of Senior Citizens therefore questions whether
The original contract provided employment for a total of 400
this administration is any more wholehearted about fostering a
elderly persons-40 persons in each of 10 community projects. Since
"commitment to increase the participation of older persons in Ameri-
then the program has been expanded twice to reach its current size
can life" than it is about taking the positive steps that would assure
of 1,148 AIDES working in 19 projects. In January 1969, 6 months
the elderly of meaningful employment opportunities.
after the project went into operation, with the approval of President
Johnson's administration, a supplemental agreement was signed
with the U.S. Department of Labor providing for the addition of
four community projects and an increase in the number of AIDE
positions so that every project had 60 AIDE positions. Then in June
of the same year, a contract amendment added five more communities
to the program.
The program has been refunded in exact dollar amounts since the
administration of President Nixon came into power in January 1970,
but there has been no expansion of the program under the present
administration.
1 For additional details, See Appendix 3, History of the Senior Community
Service Program.
(23)
24
25
Senior AIDES have been employed on jobs that are not now usually
local administration of the project. Locally, the Federal funds are
available and never would be available to the elderly. Applicants for
Senior AIDES jobs must be age 55 or older, and meet the Office of
used to pay wages and fringe benefits for the Senior AIDES employed.
Economic Opportunity poverty income guidelines.² Senior AIDES
The local sponsor must contribute at least 10 percent of the total
earn an average of $2.15 an hour for 20 hours work a week.
budget for the project. This payment is in-kind (including the salary
The National Council of Senior Citizens is one of four national
of the local project director) rather than in cash. In actual fact, many
organizations chosen to administer the U.S. Department of Labor's
project sponsors contribute more than 10 percent of the cost in terms
of time, supervision, counseling and administration.
demonstration program for employment of low-income elderly in
community service. Although all four sponsors operate according to
The local sponsors select persons to serve as project directors subject
the same basic guidelines issued by the department, the National
to the approval of the National Council's Senior AIDES project direc-
Council's administration has been unique in three important respects:
tor. The program's experience has shown that the persons selected to
direct the projects have been, in the main, outstanding. They have
(1) Its choice of communities and the variety of sponsoring
brought knowledge, administrative and program experience, dedica-
agencies;
tion, energy and an innovative spirit to their projects.
(2) The freedom it has given the local projects to design and
operate their own programs;
The National Council's major objective in setting up the adminis-
(3) Its emphasis on low-overhead administrative costs.
trative and organizational structure of the program was to provide
for maximum local discretion in the conduct of the projects, con-
Administrative costs averaged 12.9 percent of the total budget in
sistent with its responsibility as prime contractor to the U.S. Depart-
the first contract period covering 2 years of operations. In the contract
ment of Labor. To achieve this objective the National Council
period ending May 21, 1971, the administrative costs have averaged
developed a flexible management system through which the local
less than 10 percent.
projects were able to develop demonstration programs responsive
The National Council in its selection of communities met the U.S.
to local conditions and needs. This was accomplished with sub-
Department of Labor's criteria and two additional criteria of its own.
stantial supportive services and technical assistance from the national
The Labor Department required that special consideration be given to
office Senior AIDES staff.
cities with either a Model Cities program or Federal Concentrated
This policy of maximum local discretion is a natural extension of
Employment program.
The National Council added two criteria, namely, cities with active
the National Council's own policies and organizational structure.
organizations of senior citizens and viable public or private nonprofit
Although numerous experts and specialists in aging are active mem-
community agencies that could sponsor the program.
bers, the National Council of Senior Citizens is primarily a mass
More than 7 years of nationwide experience in organizing groups of
membership organization of the elderly themselves. The highest
senior citizens proved invaluable to the National Council in its selec-
governing body of the National Council is its annual convention of
tion of project communities. The National Council announced the
delegates chosen by the local clubs. Governing policies for the up-
demonstration program and opened negotiations with community
coming year are determined and officers to carry out the policies are
leaders and agencies for local sponsorships. With the advice of affiliated
elected by the convention delegates.
senior citizens clubs, local officials, and other community groups and
All National Council clubs are completely autonomous-determin-
leaders, the National Council carefully selected local project sponsors.
ing for themselves their own programs and activities.
After a review of 43 communities that seemed to meet all require-
In its almost 3 years of operation the National Council's Senior
ments, 10 were recommended to and approved by the U.S. Department
AIDES project has: Demonstrated its potential of achieving its basic
of Labor. This process was repeated when the program was expanded
program objectives to provide socially useful employment for low-
to additional communities.
income elderly persons; and to improve and expand social services
Under the program, Federal antipoverty funds pay 90 percent and
needed by the community; and in SO doing has created a structure
local sponsoring groups bear the remaining cost. Of particular sig-
for the administration of such a project which could become an
nificance is the fact that in the National Council's Senior AIDES
effective model for a national project.
program, no part of the Federal funds is used to pay any of the cost of
2. NATIONAL ORGANIZATION
2 The present guidelines allow a maximum annual income of $1,900 for a single
A. STAFFING
elderly person living in an urban area. An additional $600 of income is allowed
for each member of a person's family, e.g., an elderly person living with one
Organizational structure and staffing for the development, manage-
relative is allowed up to $2,500; a member of a three-person family is allowed up
to $3,100, etc. The original guidelines allowed only a $1,600 maximum for a single
ment and administration of the Senior AIDES project is in accordance
person and $2,100 for a two-member family. These income guidelines exclude all
with the plan submitted by the National Council of Senior Citizens
but the very poorest. According to Bureau of Labor Statistics figures, in the
and approved by the U.S. Department of Labor.
spring of 1969 a retired couple living in an American city needed a yearly income
At the national level, the Senior AIDES staff are full-time em-
of $2,777 to provide for their minimum needs; and $3,940 for a moderate budget.
The minimum budget for a couple allows $16.75 weekly for food; the moderate
ployees, except for the Director of Project Planning and Develop-
budget, $21.75. Since the BLS figures were released, the cost of living has
ment. (This exception enabled the National Council of Senior Citizens
continued to rise. In 1969 alone, it rose 6.2 percent.
to secure the services of a retired U.S. Department of Labor employee
64-678-71-5
26
27
with special, successful expertise in manpower programs related to
Executive Director and works in close cooperation with the National
older workers.)
Senior AIDES staff, but reports directly to the Executive Director.
Supportive services are provided by regular staff of the National
The position of Senior AIDES Coordinator developed from the
Council of Senior Citizens.
National Council's belief in encouraging maximum community
The Executive Director of the National Council of Senior Citizens
participation and in having low administrative costs. The coordinator
is the National Director of the Senior AIDES project. He carries
as a member of the community-and in all but two instances an
out his responsibilities with the assistance of two associates-one
elderly person-is able to provide support and insights that an outside
responsible for the administration of the program (the Program
professional could not. Many of the tasks that the coordinator per-
Director) and the other responsible for planning and developmental
forms are carried out by a full-time professional staff member in other
activity (Director of Planning and Development).
similar federally funded programs.
The Program Director carries out the responsiblities of program
His responsibility is carefully spelled out in the guidelines for oper-
operation and management and for implementation of policies and
ation of the Senior AIDES project. Briefly stated, the NCSC-Senior
planning with a small professional staff of three field representatives,
AIDES Coordinator, as the personal day-to-day local representative
and a field service assistant; and a small clerical staff. The field
of the Executive Director, provides assistance to him, on the one
representatives and the field service assistant are responsible for pro-
hand, and to the local Project Director, who has complete responsibility
viding supervision, direction and technical assistance to local projects,
for the administration of the local project, on the other. The coordi-
working through the local project directors. In addition-the field
nator does not at any time assume the responsibility of directing or
service assistant also provides administrative services to the national
supervising the local Project Director in the performance of the latter's
staff.
responsibilities.
The Director of Program Planning and Development works co-
Because he lives in the same community as the local project, he is
ordinately with the Program Director developing plans and materials
available on a day-to-day basis to provide liaison between the national
needed to facilitate administrative activities; initiating guidelines for
office staff and the local project staff. He serves as the spokesman for
both national staff and local project directors; recommending program
the national Project Director on the nationwide aspects of the Senior
and planning activities; and implementing recommendations ap-
AIDES project. He regularly reviews the performance of the Senior
proved by the Project Director.
AIDES on their respective jobs, reviews documents required by the
A minimum amount of Federal funds is used for national adminis-
prime contractor, and brings strengths and weaknesses to the atten-
tration. The Project Director receives no salary from the Federal
tion of the national Project Director. (This is the kind of activity
funds allocated to the Senior AIDES project.
that would be expected of a regular staff member stationed locally
to provide appropriate review of the project for the prime contractor.)
B. ADMINISTRATIVE AND SUPPORTIVE SERVICES PROVIDED BY THE
He provides information and makes recommendations to help ensure
NATIONAL COUNCIL OF SENIOR CITIZENS
that from the national office's point of view the Senior AIDES
project locally is achieving its goals.
The National Council's Comptroller is responsible for the fiscal
He keeps the local Project Director informed of the results of his
supportive services of the program. He works under the supervision
reviews, of problem areas he discovers, and makes suggestions for
of the Project Director to coordinate fiscal services that concern
corrective action. The final decision on this corrective action, however,
contracts, budgeting and fiscal management.
is the responsibility of the local Project Director.
The Information Assistant provides guidance and assistance on
Working cooperatively with the local Project Director, the NCSC-
preparing and disseminating information about the Senior AIDES
Coordinator is expected to be of prime help in creating an awareness
program through the public media and through research papers for
of the needs of the elderly in the community and assuring that the
specialists on aging and manpower.
total community understands the purpose and the accomplishments
The Legal Counsel assists in negotiating all subcontracts under
of the Senior AIDES program both locally and nationwide.
the program and submits them for approval to the U.S. Department
of Labor and provides guidance on any legal matters relating to the
D. ADDITIONAL STAFF RESPONSIBILITIES AND ACTIVITIES
program.
Other National Council facilities-such as administrative and
TOWN MEETINGS
clerical assistance, library and research services-provide additional
assistance to the Senior AIDES staff when needed.
The national staff has helped local project staff in six communities
to organize town meetings. A town meeting provides an opportunity
C. THE NCSC SENIOR AIDES PROJECT COORDINATOR-NATIONAL
for the local project to:
REPRESENTATIVE AT THE Local LEVEL
a. Show what it has accomplished;
b. Increase community awareness of the problems of the
The Senior AIDES Coordinator is the local representative of the
elderly and what steps are being taken to solve the problems; and
Executive Director of the National Council of Senior Citizens (in his
c. Activate future planning of employment programs for the
capacity as Project Director of the Senior AIDES program) to the
elderly.
local sponsor to whose project he is assigned. He is appointed by the
28
29
The national staff has helped the local projects to plan the formats
Adjutant General of New York Army National Guard; Andrew
of the hearings and to arrange for good coverage by the local news-
W.L. Brown, Secretary-Treasurer of the National Council of Senior
papers, television, and radio.
Citizens and Director of Community Services and Older Workers
At a typical town meeting, a panel of local leaders such as the U.S.
Departments of United Auto Workers Union in Detroit; Vaughn
Senators and/or Congressmen for the area, the Mayor, a member of the
Rudy, International Representative, United Auto Workers, Buffalo,
Senior AIDES national advisory committee, a representative of the
New York; Laura Lee Spencer, U.S. Department of Housing and
local State Employment Service, and one or two members of the local
Urban Development; Clement D. Dowler, AFL-CIO Southern
project advisory council, hear testimony from representatives of social
Atlantic Region, Greensboro, N.C.; Bernard Ruffin, Associate Direc-
service agencies that have worked with the AIDES, several AIDES
tor, Washington, D.C. Police Department, Special OEO Project;
themselves, leaders of local senior organizations, and specialists in
George Kourpias, Grand Lodge Representative, International As-
aging.
sociation of Machinists and Aerospace Workers.
Town meetings have been held in Oakland, Calif.; San Diego,
Calif.; Miami, Fla.; St. Louis, Mo.; Buffalo, N.Y.; and Providence,
3. LOCAL ORGANIZATION
R.I.
CONGRESSIONAL TESTIMONY
The local sponsoring agency is responsible for the successful and
effective operation and management of the project for which it has
The National Senior AIDES staff members have assisted local
subcontracted with the National Council of Senior Citizens. The
project staff and Senior AIDES to prepare testimony before congres-
broad policy guidelines of the National Council give the local sponsor
sional committees; and also have testified themselves when requested.
considerable discretion for establishing a program that will meet the
Testimony about inadequate health care, malnutrition among the
special needs of its community.
elderly poor, the accomplishments of the AIDE program, and the
The local sponsoring agency, in line with this responsibility, pro-
need for expansion of senior community service projects, has been
vides for central local administrative operations-including personnel,
presented.
personnel practices, maintenance of appropriate and necessary payroll
STAFF TRAINING
and statistical data, preparation and submittal of required and special
reports, etc. It is also responsible for assuring that appropriate fringe
The National Council's knowledge and the wide scope of its activities
benefits are provided to the Senior AIDES; that they receive orienta-
in aging make it possible for Senior AIDES staff to inform the local
tion and overall training on community resources, needs, and develop-
project directors about current important developments.
The national staff conducts semiannual conferences for local project
ments as these relate to older persons; that counseling, testing and
directors and NCSC-Senior AIDES Coordinators. At these confer-
placement services as needed by the Senior AIDES are provided by
the local Employment Services; that medical services are made
ences, the directors are able to learn about national policy trends, to
available through community agencies, as these services are needed;
exchange information and explore new directions for their projects.
that outside educational services are developed for Senior AIDES,
etc.
RESPONSIBILITY TO THE U.S. DEPARTMENT OF LABOR
The National Council's plan envisages a local project being operated
In addition to its program and administrative responsibilities to
and managed in line with personnel and administrative techniques that
the projects, the national staff prepares monthly progress and statis-
are recognized as good practices. To that end, local sponsors are re-
tical reports and an annual comprehensive report for the U.S. Depart-
quired to provide job descriptions outlining the functions to be
ment of Labor.
performed by the local project director, the assistant local project
E. NATIONAL ADVISORY COUNCIL
director (when such a position is used) and for the jobs to be filled by
Senior AIDES whether employed directly by the sponsor or by the
The Senior AIDES blueprint provided for the establishment of a
sponsor and/or other agencies, identified in the project as host agencies.
national advisory council. The council meets regularly three times a
The Council's plan also envisages the following administrative and
year to review the program, make recommendations with regard to
supervisory staff, for the central operation and management of the
its progress, suggest ways in which the program can be improved,
local project:
and is also on call when necessary to advise on emergency situations.
A local project director, appointed and administratively
The membership of the Senior AIDES advisory council was selected
responsible to the sponsoring agency's executive. The National
from the National Council's board and advisory committees-persons
Council has encouraged the appointment of a full-time project
who represent various categories of community leaders interested
director at a salary level commensurate with salaries for work of
particularly in the needs of older people.
similar responsibility in the community. Where it is not feasible
The following are the members of the NCSC-Senior AIDES'
to employ a full-time local project director, the sponsor is encour-
national advisory council: Matthew DeMore, first Vice-President of
aged to appoint a qualified person on a part-time basis to assist
the National Council of Senior Citizens and a former General Secre-
the project director. This person may be a Senior AIDE.
tary-Treasurer of the International Association of Machinists and
Clerical staff full time or part time, adequate to provide the
Aerospace Workers; Major General Charles G. Stevenson, former
full gamut of clerical services required to enable the local project
30
31
director to carry out his or her responsibilities in the operation
C. Low ADMINISTRATIVE COST
and management of the project.
Fiscal staff, part time or full time, to maintain the necessary
It was the National Council of Senior Citizens' policy that admin-
fiscal controls, and provide the services required when Federal
istrative costs should be kept to a minimum, SO that the maximum
funds are involved.
amount of money would go directly to the Senior AIDES. In accord-
Housekeeping staff, part time or full time, needed for the
ance with this policy the NCSC guaranteed the U.S. Department of
performance of housekeeping duties (maintenance and janitorial).
Labor that at least 80 percent of the overall cost of the program would
be for wages and fringe benefits. Wages and fringe benefits for the
The costs of the personnel to provide these services make up a por-
national headquarters staff were calculated not to exceed 10 percent
tion of the 10 percent in-kind contribution required by the National
of the total budget. Overall administrative costs, including national
Council from the local sponsor.
staff, were programed not to exceed 15 percent. In fact-as reported
The National Council's plan also envisages that every agency using
earlier in this chapter-administrative costs were kept less than 13
Senior AIDES, whether it be the local sponsor or a host agency, will
percent in the first 2 years of the contract and averaged less than 10
assume the responsibility of providing the AIDES with orientation
percent in the contract period ending May 21, 1971.
to the agency, on-the-job training, and supervision to assure maxi-
The National Council did not provide the local sponsors with
mum effectiveness and adjustment. To do this, it is expected that the
host agency will assign specific personnel to supervise the AIDE. The
Federal funds for administrative costs, e.g., salaries for supervision
host agency is expected to keep in touch with the local project director
and administration. Each sponsor was required to provide a minimum
so that the latter will be aware of the progress of the AIDE on the
of 10 percent of the amount of the total budget for the cost of
administration.
job, problems encountered, and the corrective action required.
Some prospective sponsors expressed initial resistance to partici-
In addition, the host agency must maintain those records, and
pating in the program because of the required 10-percent contribu-
provide such reports as the local project director requires.
tion. However, most accepted the National Council's explanation of
A. ADVISORY COUNCIL
its reasons for requiring the contribution-recognition that by pro-
viding salary and other administrative costs the sponsor (and the
Each project is required to establish an advisory council. The council
community) had real control over the project director and his ac-
is not a policymaking body but provides advice, assistance and
tivity. In every instance the local sponsor has been able to provide
support to the project from the community; and serves as a vehicle
the 10-percent contribution. However, the increasing financial prob-
for educating the community about the Senior AIDES project.
lems of one of the sponsoring agencies is causing concern that it may
The membership of a typical advisory council is made up of: (a)
not be able to provide future local contributions. In this event an
leaders or representatives of local organizations of older persons, (b)
alternative local sponsor may be sought to keep the program intact.
professional persons who are specialists in aging or antipoverty
One of the major administrative factors the National Council
programs, and (c) community leaders including church leaders, edu-
hoped to demonstrate was the effect of local selection and payment
cators, local leaders of the labor and business communities, and public
of salary for a project director-e.g., does the project get as good or
information specialists.
better people and provide as good or better direction and super-
vision as when the project director, even though selected locally,
B. RELATIONSHIPS WITH STATE AND LOCAL
is paid with funds that are provided from other than local sources.
EMPLOYMENT SERVICES
3
(Experience has demonstrated that, on the whole, the performance
of the project directors has been excellent.)
At the local levels, the national project staff and the local project
The program hoped to demonstrate that exceedingly effective
directors have had the assistance of the State and local offices of the
management and operation of a project follows from a local project
State Employment Services. The National Council of Senior Citizens
director being hired by and responsible to the local sponsor. This is a
has insisted that these offices (as well as the Concentrated Employ-
concept different from that of most federally funded projects where the
ment Program staffs in the local areas) must be used to screen appli-
salary of the local project director is paid with federally appropriated
cants for Senior AIDE jobs.
funds.
The local Employment Service staffs, and particularly the staffs
D. CHOICE OF SPONSORS
specializing in serving the older work applicant, quickly accepted the
basic philosophy of the Senior AIDES project and worked closely
Local project sponsors, all public and private nonprofit community
with local project staff to help the employing agencies set up job
service organizations, were primarily chosen for their reputations and
requirements and qualification standards for which the kinds of
known success in delivery of public services. Sound fiscal and adminis-
applicants who are available can be recruited. They, and the CEP
trative structure was also required. To demonstrate the concept that
staff, not only screen applicants to determine eligibility and referral
numerous types of agencies would be able to assume responsibility for
to the employing agencies, but also assist in recruiting applicants.
a local project, agencies that varied widely in nature and service were
chosen: a Community Action Agency, a Central Labor Union Council,
3 For additional discussion of "The Role of the Public Employment Service"
a City Department of Adult Education, a community service agency, a
(Manpower services), see Appendix 4.
local Senior Center Agency, and a YWCA.
32
33
E. SELECTION OF HOST AGENCIES
1. Provide information regarding commun
and available.
In developing the project with the local sponsor, it was essential to
a. Seek out, or follow up, on the elder
ensure that the Senior AIDES would be assigned where their services
b. Provide them with information abo
were most urgently needed and to local groups that wanted to partici-
and where to get the services.
pate with the local sponsor.
c. Provide information to public and
Accordingly, in some communities all of the AIDES were assigned
agencies about specific services needed
to the central local sponsor. In others, slots for Senior AIDES were
uals.
allocated to one or more community groups. Each group to whom
2. Provide assistance to elderly poor who a
AIDES were to be assigned was called a host agency. Each host
need of physical help in getting around.
agency executed a specific agreement, subject to the approval of the
a. Under direction of professional
National Council of Senior Citizens, with the local sponsor. All local
therapists, social workers, visiting nurs
groups involved were nonprofit organizations.
serve meals, assist in feeding, do repe
appointments for professional services.
4. SENIOR AIDES JOBS
b. Read to shut-ins, write letters for
them for staples, go with them to secur
Probably, as important as any part of this project was the creation
clothing, etc.
of the jobs to be performed by Senior AIDES. And so, in initiating
3. Provide services in schools, day care
the local project the National Council urged and encouraged setting
senior citizens centers.
up innovative and imaginative types of jobs to fit into each agency's
a. Assist in adult education classes, W
need for assistance in supplying community services.
small groups of slow learners, etc.
While it was necessary that some would be in the area of normal
b. Assist staff in day care centers
commercial and business activities, such as secretarial aides, book-
centers for retarded children.
keeper aides, interviewing aides, many were in direct services. Senior
c. Assist staff in public libraries in WO
AIDES were employed to provide person-to-person service, finding
(reading, story telling) freeing library st
persons (especially elderly persons) who needed help but either did
specialized assistance to older young per
not know what was available or where to find it; to assist homebound
and older persons.
elderly and either help them secure the needed items or make their
d. Assist by providing leadership in g
needs known to agencies that could meet the required needs.
craft, and other recreational activities.
These were the kinds of jobs that every community knows need
4. Assist in securing information for comm
to be done, but it can never seem to find either the people to do them
development activities including census tak
and/or the money with which to pay them. Frequently, agencies
regarding school dropouts, persons needin
attempt to provide some of these kinds of jobs through services of
community needs for Model Cities planning
volunteers. And while volunteer service is welcome and needed, it
5. Assist in program planning for maximun
does not provide the kind of responsible regular service that paid work
zation of elderly in.
does.
a. Community organizations;
Sponsors were encouraged to be as imaginative as possible in
b. Senior AIDES program.
developing meaningful community service jobs for the Senior AIDES.
6. Assist public employment service offices
There has been a growing trend among all the projects to assign
a. Interviewing elderly and securing a
Senior AIDES to agencies where they can work with other elderly
tion for use in placement or referral for
persons. Because they face many of the same problems as the rest of
b. Canvassing industry, retail establi
the elderly poor persons in the community, the AIDES are particu-
business establishments in locating and/
larly sensitive to their needs and feelings. They have humanized the
part-time employment for elderly person
oftentimes impersonal social services of the agencies and have
7. Assist in supervisory, office and simila
worked to develop additional programs for the elderly.
and private nonprofit organizations including
a. Food service preparation, and serv
SENIOR AIDES JOB CATEGORIES
centers.
b. Clerical services (typing, stenograph
The program has attempted to place Senior AIDES in a large
keeping, etc.).
variety of jobs in public or private nonprofit agencies and under the
c. Supervision and coordination of
supervision and direction of professional or semi-professional staff. The
AIDES.
jobs that the AIDES have performed carry a variety of titles, but
basically they fall into the following categories (in each the functions
involved have been indicated):
64-678-71-6
34
35
5. EXPERIENCES OF FOUR LOCAL PROJECTS
anized methods of modern mining-continue to live there in idle
poverty. The population of Marion County is approximately 63,000-
All but one of the National Council of Senior Citizens Senior
according to the 1970 census. Fifteen thousand, more than one-fourth
AIDES projects are in urban areas. The one rural project is located
of the population, are 55 years of age and older. Of the original 62
in Marion County, W. Va. A brief analysis of four projects, including
AIDES who applied for the Senior AIDES program, 22 stated that
Marion County, has been made to give an overall view of the Senior
they had incomes of $1,000 or less per year. At least five had no
AIDES program. The project communities are San Diego, Calif.4;
income at all and subsisted on handouts from family sources, usually
Dade County, Fla.; Minneapolis, Minn., and Marion County, W. Va.
sons or daughters.
Each of the four communities is confronted with the basic problem
of providing adequate services for a steadily increasing population
B. STUDY OF SENIOR AIDES APPLICANTS
of elderly persons with low incomes.
The four sponsors in these communities represent the diversity of
The Senior AIDES applicants can be divided into two basic
agencies selected by the National Council. The sponsor in San Diego
categories: the lifelong poor and the new poor.
is the Community Welfare Council, an urban planning agency; in
The lifelong poor are those who are unskilled, underemployed or
Dade County, the Senior Centers of Dade County, Inc., a non-
unemployed, and poorly educated; and members of minority groups
profit voluntary service agency of the United Fund; in Minneapolis,
who were denied opportunities in their earlier lives (e.g., one black
the Central Labor Union Council; and in Marion County, the County
AIDE had taught elementary school in Mississippi before going to a
Court.
major city, where the only job he could get was as a city porter-a
A. DESCRIPTION OF PROJECT COMMUNITIES
low-paying job with inadequate pension benefits).
The new poor, after a lifetime of self-sufficiency, have found that
In San Diego County, Calif., there is an estimated population of 1.348
they are unable to provide for themselves in their old age. Some of the
million as of January 1, 1970, and 698,000 reside in the city of San
reasons for their new poverty are:
Diego. Approximately 8 percent, or 110,000, are over age 65. Welfare
The inability of the Social Security benefit program and other
rolls indicate that 14,848 persons-more than 10 percent of the city's
pension programs to keep up with the steadily increasing cost
population, an unduly high proportion-are receiving old age as-
of living.
sistance. According to the local project FIND, an antipoverty program
A long-term illness which has wiped out a lifetime's savings.
funded to discover the unmet needs of the elderly, the San Diego
Medicare currently covers less than one-half of the average
community is the most densely populated area of deprived elderly
health costs of the elderly. The deductible and coinsurance
persons in the country.
features of Medicare act as barriers to good health care. Costly
The elderly make up an increasingly large proportion of the popula-
out-of-hospital prescription drugs are not covered.
tion of Minneapolis, Minn. As in most American cities, young and
The early death of the head of the household which leaves a
affluent families are fleeing the city leaving behind those who cannot
widow stranded, often with growing children, and little or no
afford to move.
means of support. These widows often have never been employed
The age 55-plus population of the city of Minneapolis increased
and have no benefits of their own.
more than 25 percent in the last decade-from 83,242 to 110,411-
The jobs held throughout most of the lives of the applicants
while the total population declined almost 10 percent from 482,872
required physical stamina which they no longer have (e.g., some
to 434,400.
women did domestic work most of their lives; some men drove
Almost two-thirds of the elderly population of Hennepin County
trucks or taxis, or worked in the building trades).
live in Minneapolis proper while less than one-half of the county's
The jobs performed by the applicants for many years have now
total population live there.
become obsolete (e.g., one AIDE was a fancy stitcher in a shoe
In the group of the largest 12 States, Florida has the highest
factory, and another was a self-employed scrap hauler).
proportion of citizens over 65 years of age-14.5 percent-according
Inadequate pension coverage-many persons were never covered
to the 1970 census. Of this population 172,725, more than one-sixth
by any pension plans, public or private, although they may
of the State's total elderly population, live in Dade County.
have worked throughout their lives (e.g., one AIDE was a cook
Dade County has a population of 1.25 million people; of this
"here and there" all of her life).
number 26 percent are Spanish-speaking residents; more than 10,000
Illness that forces early retirement-some applicants had job-
of these Spanish-speaking people are elderly Cuban political exiles
related disabilities, and little or no health benefits. They were
who are 65 years of age or older.
forced to retire at an early age (e.g., one foundry worker with
Marion County, W. Va., is depressed economically. Abandoned
asthma who later had to take whatever odd jobs he could get).
coal mines dot the countryside and coal miners-victims of mech-
Family responsibilities which have not diminished with old
4 San Diego recently was the subject of an evaluation conducted by Kirschner
age-many older persons are responsible for elderly parents or
Associates of Albuquerque, N. Mex., for the U.S. Department of Labor.
handicapped adult children or young children from a late marriage
or orphaned grandchildren.
36
37
PREVIOUS EDUCATION NO SAFEGUARD AGAINST POVERTY
She also arranged for interviews on radio and television. She con-
tacted union retiree organizations with large numbers of minority
Senior AIDES statistics show that earlier education and experience
group members. Only after these efforts was there an increase in the
do not protect a person from a poverty-stricken old age. This is true
number of applicants from minority groups.
of not only the four areas evaluated but also the other project areas.
For instance, almost half of the original Senior AIDES in Minneapolis,
THOSE WHO WEREN'T HIRED
Minn., had at least a high school diploma; however, three-fourths of
the AIDES had incomes of less than $2,000. More than 50 percent
Once the original job slots were filled, the Senior AIDES program
of them had incomes less than $1,500.
was unable to help the thousands of other suitable applicants seeking
In Dade County only 27 of the 60 Senior AIDES had not com-
employment. They had nowhere else to turn. In Marion County, for
pleted high school; of the remaining 33, 10 had stopped their educa-
instance, there are 250 applicants who are waiting to become enrollees
tion at high school graduation, 23 had some college-of whom six
in the Senior AIDES program. "With papers already processed and
had bachelor's degrees and six had advanced degrees. Despite their
signed, they are ready to go to work," said the Project Director.
education level, 10 Senior AIDES had incomes of $1,000 or less, and
Applicant records in each project area have shown that the Senior
50 had incomes of $2,000 or less.
AIDES program is unable to meet the needs for almost nine applicants
Sixty-five percent of the current Senior AIDES in San Diego have
for each job slot-even though there was little or no local publicity
a high school education or better, but when first applying for enroll-
for the jobs.
ment in the Senior AIDES program, 10 percent indicated that they
The elderly poor applicants who have not been eligible for AIDE
had no income at all.
positions can be divided into the following categories:
The Marion County project had AIDES with considerably less
1. The older person who was too feeble to work, even 20 hours
formal education than any other project. No applicant had ever
a week, but who needs additional income.
attended college; however, 34 percent reported that they had received
2. The older person whose family income is above OEO
high school diplomas. The poverty and lack of formal education of
criteria, although his own personal income is well within the
the Senior AIDES in Marion County is typified by the following
example:
criteria. According to current OEO guidelines, a two-member
family is allowed a maximum annual income of $2,500, a 3-
One applicant, a 58-year-old widow of a preacher, left school
member family is allowed $3,100, etc. Thus an elderly person
in 1925 after completing the eighth grade. After her husband
with no personal income, who lives with a relative, is ineligible
died, she subsisted on money that she earned baby-sitting. When
for a Senior AIDES job if his relative earns more than $2,500
she applied for the program, she reported no regular income, and
annual income. One of the best documented examples of this
gave as her principal means of support, occasional gifts from a
problem occurred in the San Diego project area.
married son and members of her late husband's congregation.
Mr. M. is a Mexican American who applied for a position
in the Senior AIDES program in San Diego. He qualified,
C. RECRUITMENT
according to the age and individual income criteria. Shortly
after he was hired, however, he was terminated by the local
Recruitment and initial screening of applicants for Senior AIDES
Project Director, It was discovered he lived with an adult
has been carried on in close cooperation with the local offices of the
daughter whose annual income of several thousand dollars
State Employment Services. In a number of communities the local
disqualified him, according to the OEO family income criteria.
offices themselves have utilized AIDES to assist in recruiting, screening
Mr. M.'s daughter wrote to President Nixon.
and referring applicants to project directors. Such applicants are
In a long, two-page letter she explained that she could not
first considered by the local offices for possible employment in the
understand the rationale for his dismissal. Her father had
competitive labor market. When such opportunities are not available,
come to live with her because he was too poor to live alone.
or cannot at the time be developed, the applicant is considered for a
By providing him shelter, she was carrying out a basic re-
Senior AIDES opening.
sponsibility that any daughter has for a parent who was, in
Most of the projects have experienced difficulty in finding applicants
his later years, unable to provide for his basic needs. "Why,"
from minority groups, such as Negroes, Indians, Mexican Americans,
she asked, "was he terminated?"
etc. Normal recruitment efforts, using only the local employment
The White House, through OEO, contacted the national
office, did not reach the minority communities, nor did the routine
Senior AIDES office for further explanation. After inquiring
appeals to community agencies.
about the matter, the national office determined that he had
In Minneapolis, for example, the Project Director attempted to
been terminated because of OEO's family income guidelines.
overcome this problem by conducting a special recruitment program.
Although terminated from the Senior AIDES program, Mr.
She called ameeting of representatives of the major community agencies
M. was assisted by the local State employment service in his
working with minority groups to inform them of the Senior AIDES
efforts to find a job. Today he works full time at $2.45 an
program and to seek their help in identifying needy elderly applicants.
hour and he still lives with his daughter.
38
39
This is a special case only in its happy solution. Although
his daughter's letter resulted in his getting a full-time posi-
Schiffrin, Coordinator of the Field Center on Aging at the San Diego
tion, the policy that she questioned remains. Thousands of
State College School of Social Work, reported "the Department of
elderly persons in similar situations are ineligible to be hired
Human Resources Development has phased out its older workers'
criteria. by the Senior AIDES program because of the family income
program." "Here in San Diego," he went on to testify, "Project 45
had a staff of five, working with older people and seeking job op-
3. The elderly person whose income, though inadequate, is
portunities for them, now this staff has been whittled down to one-
gram. still above the OEO income criteria for the Senior AIDES pro-
and the client population is continuing to increase. Thus the need for
help for the older worker, in my opinion, is now greater than ever."
D. SERVICES AND PROGRAMS
Now a number of Senior AIDES in San Diego have been assigned
to a State employment service experiment, under the guidance of an
In the communities where Senior AIDES have been employed, the
older worker specialist. These AIDES receive requests from prospec-
agencies recognize the needs of the elderly poor and know to what ex-
tive employers and attempt to find positions for other senior citizens
tent they should go to meet these needs, but they simply do not have
and themselves. As these AIDES find employment, new Senior
the funds. Most community agencies are funded by donations from
AIDES are hired to fill their job slots. In addition to this service,
the private sector. However, current economic trends-inflation and
they also write their own job résumés and help others to write theirs.
unemployment-have resulted in a decrease in contributions, and a
Senior AIDES, assigned to a community center, prepare a monthly
cutback in staff and programs throughout the country.
Senior Citizens Newsletter that is distributed to about 3,000 elderly
Providing Senior AIDES to community service agencies has
residents. Senior AIDES also are teacher's aides and counselors in
mitted those agencies to perform more effectively in helping the com- per-
youth programs, information and referral aides, health care and
munities. The AIDES have helped the agencies in two ways:
nutrition aides; and bookkeeping, typing and clerical aides in local
1. AIDES with no specialized skills or no skills have performed
community service agencies.
routine tasks, freeing the agency professionals to concentrate on
The Commission on Aging of the Community Welfare Council (the
other duties that only they can perform.
local sponsor) serves as the advisory committee to the Senior AIDES
2. AIDES with higher skills have provided paraprofessional
project. The commission provides the project with information about
services that the agency was unable to provide because of in-
what services are most needed in the community, and which agencies
sufficient manpower (e.g., social work assistants and home-
would provide the most effective placements of Senior AIDES. The
health AIDES).
committee also has conducted a campaign to find permanent place-
The Senior AIDES have expanded community resources and have
ment for Senior AIDES. Since the program began, 30 Senior AIDES
improved the quality of community services in every project area.
have been placed with local private employers.
Despite the relatively small number of job slots for the large urban
F. DADE COUNTY, FLORIDA
communities. areas, the projects are making an extensive impact on the needs of the
The staff and board of directors of Senior Centers of Dade County,
In projects where the AIDES are placed with numerous host
the sponsor agency, were concerned that the elderly in poor neighbor-
agencies, there is no clearly defined focus on a particular community
hoods were not receiving the health and social services available to
problem or need. In Minneapolis, Marion County, and San Diego,
residents of other sections of the county.
AIDES work on a range of social issues designed for widely differing
There are numerous agencies in the county to work with the elderly
groups (e.g., teacher's aide with retarded children, physical therapy
poor, but the large land area of the county and a limited public trans-
aide teenagers). in a Veterans' Home, a group work assistant with delinquent
portation system prevents them from reaching large numbers of the
elderly poor. Sick and disabled persons often have to travel over
On the other hand, projects where the sponsor agency itself uses all
30 miles for medical service. Since the Welfare Department has only
the AIDES, such as the Senior Centers of Dade County, there is a
two distribution centers for surplus food, many elderly persons, who
elderly poor.
clear program focus. All of their AIDES work with programs for the
have no cars or access to public transportation, are not able to pick
up the food-which is supposed to be their main food supply. The
At the beginning of the program, projects such as Minneapolis
primary task of the Senior AIDES has been to bring programs and
who felt that older workers might not fit into their programs. After
encountered some resistance from prospective host agency personnel
services to the isolated elderly.
this resistance was overcome, the sponsor agencies were able to be
VISIT 1,000 HOMES EACH MONTH
more selective in their choice of hest agencies.
The Dade County Senior AIDES visit 1,000 and more homes
E. SAN DIEGO, California
each month.
In San Diego, the State employment office of California had
Between 30 and 40 elderly people are brought to hospitals, clinics
practically phased out its specialized services to the older worker,
or doctors each month; most from the outreach areas of Homestead
until the Senior AIDES program was established in San Diego. Mark
(about 35 miles south of Miami), Perrine, and South Miami-which
40
41
have no bus service. The AIDES also bring the elderly to the senior
seniors for the centers and give information about the activities
to teaching English, the Spanish-speaking Senior AIDES recruit of
centers for preventive health care (flu shots, diabetic screenings,
chest x-rays).
Senior Centers of Dade County."
Approximately 500 boxes of surplus food from the Department of
Senior Center services have been extended to include opportunities The
Agriculture (weighing about 40 pounds each) are received from the
for training and part-time employment of center members. for
Government Surplus Warehouse monthly and brought to the centers-
again in the outreach sections. The AIDES deliver approximately
agency positions on its own staff, but these opportunities are
has attempted to employ qualified older men and limited. women
200 boxes to the recipient's homes each month, and they deliver about
150 hot meals to the home-bound elderly each month.
the teamwork of the Senior AIDES Project Director, the National the
One example of increasing employment opportunities grew out of
The AIDES also gather boxes of clothing, shoes and blankets to
Council of Senior Citizens-Senior AIDES Coordinator, and
distribute to the elderly. They teach Spanish and English; they assist
Florida State Employment Service.
in teaching the elderly ceramics and crafts, even giving lessons to
switchboard operators, night clerks and bookkeepers in small hotels,
After an employment survey of Miami Beach revealed a need for
shut-ins.
Ten Senior AIDES work in the Model City area where 10,000
the coordinator and project director talked with the Ida M. Fisher Bell
elderly-60 years of age or older-live in public housing projects,
cramped private apartments or single rooms, and have limited income
switchboard for a switchboard class. Elderly persons have been gradu-
Telephone Company and persuaded the company to lend an $1,800
Community School. A school official called on the Southern
from Social Security or old age assistance. These elderly persons
range in age from 60 to 100 (the average age is 75). The average
ated from the classes and placed in jobs in Greater Miami.
education level is below the sixth grade. Many are completely illiterate.
The experience of the Senior Centers of Dade County is an example social
An estimated 90 percent live in poverty.
of how senior citizens programs receive lowest priority when
Senior Centers have presented a project proposal called "Operation
service budgets are planned. The Dade County commission had pro- of
Help", for the elderly poor, to the Model Cities program; including
vided approximately $200,000 annually to the Senior Centers and
in it part-time paid employment of older persons. The United Fund of
Dade County, Inc. for the operation of six multiservice centers had
Dade County and its affiliates are interested in using Senior AIDES
outreach program. In the fall of 1969, when the commission The
in programs outside of Senior Centers if funds become available.
one to curtail its own budget, it discontinued its financial support.
Senior Centers program had to terminate 31 members of its small 40-
HELPING ELDERLY MIGRANT FARM WORKERS
member staff. Only because of the Senior AIDES was the
remaining staff able to keep the programs and services operating.
The Senior AIDES work with the elderly migrant farm workers in
the southern part of Dade County. Senior AIDES Friendly Visitors
G. MINNEAPOLIS, MINNESOTA
are former farm workers themselves who are too old to work in the
fields. There are several hundred elderly migrant farm workers in the
Five Senior AIDES operate as resident planners for the Model Cities
Homestead-Florida City area, and hundreds of others in the Perrine
Prior to the hiring of the AIDES, there was no neighborhood of
and South Miami areas-which are closer to Miami. Many are dis-
planning program. specifically for the elderly. In their first few months
abled and in dire need of constant medical attention. They are almost
employment, the Senior AIDES set up 17 senior citizens meetings citizens'
totally illiterate. Social Security checks are small or nonexistent for
involving over 1,000 persons. They established a senior Con-
these elderly farm workers; very few of whom even know to what
benefits they are entitled. Senior AIDES assigned to these areas are
sequently, the AIDES have made it possible to have a much higher
advisory group to plan a comprehensive senior service center.
the lifeline of the elderly. On a typical day, an AIDE might cook
participation of older people in the planning of the Model Neighbor-
breakfast and spoonfeed a paralyzed man recovering from an opera-
tion, sweep his floor, go to the drugstore for medicine, and supply
hood. One resident planner was so effective that he was hired for a full-
new clothing. AIDES also help them to fill out application forms for
time staff position with the Model Neighborhood program. Since been
benefits and pensions. They have organized senior clubs that meet in
the OEO Neighborhood Centers where the members sew for needy
instrumental in forcing an investigation of nursing homes in the Model for
their initial activities, the Model Neighborhood AIDES have
children, have arts and crafts lessons and basic education courses, and
Neighborhood. Two other AIDES assigned to the Association of the
a singing club.
Retarded Children conducted a survey to determine the needs
HELPING ELDERLY CUBAN REFUGEES
mentally retarded in the Model Neighborhood area.
Another Minneapolis Senior AIDE, an arts and crafts instructor,
Another special problem in Dade County is the high number of
elderly Spanish-speaking exiles. In the words of Louis Sanjenis, Coor-
instructors in arts and crafts for a local senior citizen center. home She,
took additional training at her own expense. She now trains volunteer
dinator of Project Amigos for Senior Centers: "The exile population
herself, conducts an arts and crafts class at a local nursing
is very anxious to work-those who are able. They have no Social
where her classes are an important part of the physical therapy pro-
Security, no pension, only a great willingness to work. There is a
disproportionate number of aged among the Cuban exiles. In addition
gram.
42
43
A blind Senior AIDE with previous experience in real estate is
them a housing counselor for Minneapolis low-income families. He helps now
services to be performed. This information then is sent to the Senior
to purchase homes under a special government program.
AIDE supervisor who assigns the case to one of the five Senior
AIDES. The homemaker service recognizes that counseling alone often does
AGING SECTION FOR AID SOCIETY
not solve many problems. An old and disabled person could be told
The Minneapolis Citizens Aid Society, in more than 40 of
how to plan a meal, but still be unable to prepare it. The AIDES
the operation, had never had a program especially for the elderly years until
provide both commonsense counseling and supportive services. In a
the oped her own information manual about programs and benefits for
information desk in the front lobby four mornings a week. She devel- an
Senior AIDES program began. Today, a Senior AIDE staffs
housekeeping chores for her younger brothers and sisters while her
typical month, an AIDE might help a 15-year-old girl plan meals and
mother is in hospital; prepare meals and pick up prescriptions for an
A number of Senior AIDES have been assigned to the Minneapolis
elderly. She processes approximately 40 inquiries each day.
invalid couple; and accompany a blind person to a dental appoint-
ment. If there is no other resource available, AIDES also assist in
assigned to MARC have been teacher assistants. Several of the AIDES
Association for Retarded Children (MARC). The majority of AIDES
light housekeeping.
Senior AIDES assigned to the Recreation Department have devel-
have worked with the adult mentally retarded; one AIDE
of Two other AIDES conducted a survey to determine the needs
adults. an assistant foreman in a sheltered workshop for mentally serves retarded as
facilities. Over a 4-month period, they cleared several acres of land to
oped a project that has allowed the town to increase its recreational
set up an athletic field. The AIDES also installed athletic equipment
the mentally retarded in the Model Neighborhood area.
and built a small clubhouse. Later, they assisted in supervising recrea-
One Minneapolis Senior AIDE, a former problem drinker,
tion activities for children and teenagers at the newly established field.
formal counselor in a halfway house for alcoholics. Although he received was a
The Project Director has reported that the acreage-previously un-
training from the halfway house, he drew on his personal no
used land-is now patronized weekly by several hundred young people.
perience to counsel other elderly alcoholics; he helped them to seek ex-
Senior AIDES constitute the nonsupervisory personnel of the
the 20 hours for which he was paid as a Senior AIDE. many His more Senior
employment, housing and medical care, often working than
Retarded Children's Workshop. The workshop would not be able to
function without the AIDES' assistance. Five AIDES operate the
AIDE duties have been extended to include work with a rehabilitation
workshop, two carpenters instruct 24 retarded children, two AIDES
program organized and operated by exconvicts.
teach ceramics and perform general workshop duties; and one AIDE
Another Minneapolis Senior AIDE, an immigrant from Czecho-
drives the workshop bus.
slovakia 10 where he once practiced medicine, came to the United States
Marion County Senior AIDES also provide important services at
years ago. He was unable to qualify for the State medical board
the Friendly Homes Mission, a nonsectarian agency, which has about
examinations of Minnesota due primarily to a language barrier.
80 residents, most of whom are elderly. In addition to its permanent
his Director found assignments for him, as a Senior AIDE, that utilized Project
Frustrated in his life's work, he had become embittered. The
residents, the mission provides shelter to families who temporarily
have no place to live, and juveniles who, if the mission did not accept
of medical knowledge. He has, for instance, prepared bibliographies
them, would be placed in the local jail. One AIDE, who is 80 years
the technical publications for the Washburn Child Guidance Clinic and
old, does minor repair work-fixing a leaking faucet or replacing a
Minneapolis Association of Retarded Children.
loose drain board. Several AIDES help prepare meals for the residents.
Other AIDES who serve as social work assistants, help the residents
H. MARION COUNTY, WEST Virginia
write letters to relatives, mend their own clothes, or prepare items
to sell in the resident-operated "Helping Hand" store.
needy and isolated families and individuals.
Counties, Inc., had been aware of the need for a homemaker service for
For several years the Family Service of Marion and Harrison
6. CONCLUSIONS
Insufficient funding and the consequent inability to hire staff
Basically, the National Council of Senior Citizens-from its opera-
the prevented Family Service from providing a homemaker service, until
tion of the Senior AIDES project-has drawn the following conclu-
AIDES agency was assigned five Senior AIDES in the spring of 1969. The
sions with respect to the employment needs of the elderly and the
hours working with a supervising caseworker spend an average of 286
needs of communities for the services of the elderly.
on 74 home visits each month.
(a.) Elderly persons (55 years of age and over, with limited financial
discussion of social work theory and practice, field assignments, and
Family Service provides the AIDES with several weeks of training-
resources, in comparatively good physical health and mentally com-
petent) are ready, able and available for employment in community
regular group discussions duties. of their field experiences-before they begin their
service activities.
ill. Referrals come from the community-neighbors and friends of
The homemaker service gives priority to the elderly and chronically
Several prime considerations are motivating factors, namely:
They need money, which they earn, to supplement their meager
determines the extent of services needed and the need and length of
persons who need the service-and other social agencies. A caseworker
incomes. They resent and resist being forced to be recipients of
moneys which in any way is a dole or handout. They have been
44
45
oriented society.
unable to find employment in any field of work in our youth-
ments, and similar community organizations. Reports show crime that
AIDES have performed effective services in reducing
in which productive employment, for pay, was a measure of
They want to be useful and needed. They grew up in a society
rates, arts and crafts, and assisting in the establishment
providing assistance in guide services as well as in of teaching model
for individual's worth. Now, not only do they have no opportunity an
cities projects.
meaning to their lives.
or their services are needed. To be useful and needed provides
paid employment, they find that there is no evidence that they
(e.) Every community agency finds itself short of staff to perform
necessary administrative services.
taking work away from their children and grandchildren expense who
They want employment for pay but not at the of
general office skills, assisting the regular staff in functions using
Elderly persons renew such skills as typing, bookkeeping,
younger and dependents, to build an equity in pension
need substantial earnings to meet the cost of living, to support
such skills.
In the creation of job opportunities in the Senior AIDES project,
most want part-time jobs in work that is not competitive with
to build their entitlement to medicare services. Consequently, programs,
the Council has never lost sight of the need to ensure that participating of
jobs sought and held by their children and grandchildren.
agencies meet the Government's requirement for "maintenance the
established profit-cannot provide, to the extent needed, services which they non-
(b.) Community service organizations-public and private,
Senior AIDE; and to encourage host agencies to move AIDES
effort;" to encourage jobs that are meaningful and satisfying to from
project employment status to the regular payrolls.
rather to give. This is usually not because they are uninterested: are
It has become increasingly evident that many AIDES between the
trained it is because of limitations in the number of professional,
of 55 and 62 are anxious to use the project as a means to seeking
fact staff and facilities. These limitations, in turn, are due to the
full-time ages employment in the regular labor market, while the majority
that adequate funds and trained staff are not available.
over 62 are more interested in working part time in noncompetitive
fill funds, through programs such as the Senior AIDES project, help
Services of individuals, whose wages are paid for out of Federal
employment. It is also clear that while some of the older persons (particularly desire
work trained staff, whether it be in a hospital or a library or a social
the gap. The AIDES provide assistance to professional,
regular full-time paid employment, the vast majority undertake of those or
those not yet eligible for Social Security or pension benefits) 62
of and over are unable psychologically to
give more service.
agency, permitting the professional, trained personnel to
years to age jobs in the competitive labor market. For these persons, local)
adjust it is incumbent upon the government (Federal, State and/or in
through the Senior AIDES project, provides mutual benefits elderly to
(c.) Outreach and person-to-person service, provided by the
in the regular labor market, and to provide funds in full or part and
to essential community services, noncompetitive in character in to
assume responsibility for the development of meaningful with jobs jobs
the community, services. the individuals being served, and the elderly providing the
public and private nonprofit agencies needing these services must
Outreach brings to the attention of the potential
establishing the jobs. At all times, however, the elderly person seek
her information about services and assistance available to recipient him
be given the option of deciding whether he will eventually or a
able in the community. Many needing help are unaware of avail- or
or a full-time job in the competitive labor market,
assistance at no or little cost to recipients.
part-time whether that person will remain in a government supported part-time
information about individuals needing services, and about agencies needed
Outreach brings to the attention of the community
community service job.
services that are not being given. From this can come, and does
A. RULES AND REGULATIONS AFFECTING ELIGIBILITY OF ELDERLY
come, action to add such services to community
PERSONS FOR EMPLOYMENT AS SENIOR AIDES
and to seek, as a group, needed services as well as action
Outreach brings elderly people together to help each programs. other
The definition of "family income" as a criterion for eligibility U.S. as
established 1. by the Office of Economic Opportunity and the
correct situations which do not contribute to meeting their needs. to
Person-to-person services make it possible to provide
Department of Labor is unrealistic.
individuals. help to housebound and otherwise disabled but still ambulatory personal
allowed a maximum annual income of $2,500, a 3-member family,
According to current OEO guidelines, a two-member family is
(d.) Every community agency finds itself short of staff to
$3,100, etc.
This is not only unrealistic but also unfair. It prohibits employing he is
variety of: (a) cultural; (b) recreational; and (c) protective carry services. out a
Elderly persons enrich their own lives as well as those of
an with a family group whose total income exceeds OEO's "family" several
individual with little or no income himself simply because
day care centers, libraries, art institutes, schools, police depart-
others by assisting with services performed by Senior Centers,
living income level. The National Council of Senior Citizens via the
poverty times has requested reconsideration and revision of this guide received no
U.S. Department of Labor. To date, the Council has
indication that any action has been taken on this request.
47
46
This will be done through project (a) an level, intensive (b) program the services with of
2. The earnings of the elderly in this currently temporary, part-
time employment is being considered as a factor in determination of
information munities. of the local directed advisory from committees, the national community (c) the local public clubs hearings affiliated (such Calif.; as
eligibility to continue to live in public housing. As a result of possible
eviction, elderly persons qualified for employment as Senior AIDES
the those National already Council, held in St. and Louis, (d) Mo.; Oakland and San Diego,
must forgo the opportunity to work in this project.
and in Buffalo, N.Y.).
Efforts have been made by the National Council of Senior Citizens
to secure a uniform, national ruling that would eliminate these earn-
E. ROLE OF THE U.S. DEPARTMENT OR LABOR⁵
ings from consideration, without success. National Council of Senior
the 1965 and 1966 antipoverty hearings before the several Sub-
Citizens personnel have been told that such relief is permissible but
must be negotiated community by community. It would seem that the
subcommittees Following of the Special Commity Services SpecialCommityServices recommended Service
precedent of waiving the income earned in work training programs
such as the Neighborhood Youth Corps in computing "family in-
committee legislation on authorizing Federal, Senior in
comes," as established by the National Capitol Housing Authority, in
Washington, D.C., should be extended nationwide to the Senior
AIDES demonstration project.
THE a S. were into 276, enacted the which Congress had into been law.
3. "Fringe benefits" need to be spelled out more specifically, and
However, Senators Harrison Jr. (D.-N.J.) the and Secretary Joseph
expanded to include provisions for medical examinations (and referral
for corrective action) for each applicant considered for employment
introduced S. Clark (D.-Pa.) by and with bipartisan Senior AIDES cosponsorship, program. Council (Details of Senior are
as an AIDE.
of Labor agreed on to 10 establish of the Report a on the National and Appendix 3 of this
B. FLEXIBILITY IN HOURS OF Work
discussed Citizens' Senior page AIDES program, 1970, of
The National Council of Senior Citizens Senior AIDES project
was established as a part-time community senior service program,
Working Labor Although Wirtz Paper.) the used legislation his discretionary was not authority enacted into to implement law, Secretary the ob-
limiting work hours to 20 hours per week.
Local project directors have noted that there are numerous instances
jectives
where both the agency using the Senior AIDE and the Senior AIDE
are mutually desirous of the opportunity for a longer workweek.
responsibility The Secretary of the for legislation. of contracting Labor in establishing, delegated and working to the This responsibility is
Consideration will be given, if additional funds become available
to expand the demonstration, to experiment with a variable hourly
workweek, under guidelines that will be established by the National
of in carried Senior the operation out Citizens, by a of designated Department the Senior Project of AIDES Labor Manager. Project. and the He Office provides of Economic Council's
Project Sponsor and the U.S. Department of Labor.
C. LOCAL ADVISORY COUNCILS
liaison Opportunity. The contract with the for the of Senior the U.S. AIDES Department Project, features of signed of Labor, the with program contains the Man- con- the
Although the subcontracts with local sponsors require the estab-
power Council's Administration proposal which outlines project the will be administered, and the
lishment and use of local advisory councils, a considerable number of
these local sponsors have failed to establish such councils. Even
tent, the and manner budget in which aspect. the The Administration contract was and negotiated approved with by repre- them. the
where they have been set up, there is little evidence that they are
being used effectively.
funding sentatives further of modifications the Manpower of Deviations the contract from must the be basic approved elements by out-
The National Council of Senior Citizens (the prime contractor),
plans to take appropriate steps to insure that these local advisory
Any Manpower in these Administration. documents must receive prior in which approval discretion from the has Project been
groups are set up and used. To that end, guidelines will be issued in
lined except in those instances Director. local
the immediate future.
Manager, given to Project the Senior Director, AIDES as Project the prime are contractor, required as to well adhere as the to the
D. COMMUNITY ACCEPTANCE
project The directors and as standards subcontractors, that are as provided needed, by and the supplemented Manpower
The agencies using Senior AIDES have enthusiastically accepted
basic policies These are interpreted, apply specifically to the Senior
both the concept and the desirability of this project.
However, the Council has not found that the project-its concept
Director their authority or his Associate in connection Directors with
and usefulness-is as well known as we would like throughout most
of the communities in which the local projects are operating.
have questions of of implementing information, advice the are services invaluable. of the Project
Steps will be initiated immediately to develop an informational
the Manager issuance in securing information and
and educational program, community by community, to extend
knowledge about the concept and service throughout these com-
5 For additional discussion, see Appendix 4.
48
49
The Manpower Administration participates in the selection and
ior AIDES staff learned about this revision and in a letter to the
approval of localities in which the projects will be subcontracted; it
Project Manager requested instructions concerning use of these
advises on and approves job descriptions for Senior AIDES jobs; it
revised guidelines for the Senior AIDES project. A telephone call
requires regular reports and special reports. It monitors local projects
to the Project Manager in February 1971, brought the information
on its own initiative, or in conjunction with Senior AIDES field
that these would not be in effect for Department of Labor or
representatives.
Mainstream programs until they were officially transmitted by
In many cases, the assistance of the Manpower Administration's
letter from the Manpower Administration. It was not until
Project Manager and staff services have been timely and most helpful.
April 1971 (4 months after OEO issued the revision), that the
In other instances, the National Council's Senior AIDES Project
Senior AIDES local Project Directors were able to use these
Director and staff have not received as effective assistance as it
guidelines in considering applicants for Senior AIDES job
would have liked. Some examples of the latter include:
openings.
1. The development of reporting forms that would provide
It would be most helpful if the Project Manager would be able to
needed and meaningful information for the management, plan-
devote more time than has been possible in the past to provide effec-
ning, as well as evaluation of the demonstration For
tive assistance to the project for which he is responsible.
example, a format developed by the Senior AIDES staff to
gather information on personal, social, and income data for appli-
F. SPONSORS AND HOST AGENCIES
cants for Senior AIDES jobs was approved by the Project Man-
ager and put into effect shortly after the project was contracted.
To demonstrate the needs, as well as the ability, of a wide range of
About a year or SO later, the project staff was instructed to use
community public and private nonprofit organizations to use the
its report forms with forms that were being used for working
services of the elderly poor and to effectively and efficiently manage
training programs by the Manpower Administration. The
a program in which the government provides some financing, the
National Council's Senior AIDES project staff called attention
National Council sought out agencies of a variety of disciplines and
to the fact that the required forms-NYC forms identified as
interests, but all viable in terms of community acceptance and financial
NYC-16 (Neighborhood Youth Corps Enrollee Record) and
status. The demonstration has shown that numerous types of agencies
MA-102 (Individual Termination/Transfer Report) failed to be
are able to assume responsibility for a local project.
as relevant to the needs of a demonstration project serving older
In a few instances, a local subcontractor will find that the best use
persons as the Senior AIDES forms. Permission to continue using
of the AIDES can be made by that agency itself. In most instances,
the Senior AIDES forms instead of the NYC and MA forms was
the local subcontractor has developed necessary agreements and work-
requested. This permission was refused with the advice that
ing arrangements to ensure maximum attainment of the project goals.
within its discretion the Council was not prohibited from using
Here, again, the kinds of local agencies using from one Senior AIDE
both the required reporting form and the Senior AIDES reporting
to 15 or 20, are exceedingly varied. These latter agencies are identified
form. The National Council did not feel it feasible to require busy
as "host" or "user" agencies. Included are neighborhood houses,
local project staff to spend the time that would be required to
recreation departments, health and welfare councils, mental health
fill out two sets of forms supplying enrollee data. Meantime, the
hospitals, boys' clubs, public schools, model neighborhood planning
Department of Labor has not yet provided appropriate and rele-
agencies, art institutes, associations for the mentally retarded, com-
vant reporting forms even though at a project director's meeting
munity homemaker services, visiting nurse services, day care centers,
in May 1970, its representatives indicated that a more relevant
etc.
form was being prepared.
The jobs created for Senior AIDES services are innovative, meaning-
2. Positive action on the request for a change in the definition
ful and useful, and vary from those which provide person-to-person
of "family income" in the OEO's poverty income level criterion
services to office jobs. (See the Report on the National Council of
for employment in antipoverty programs. The prime contractor
Senior Citizens' Senior AIDES Program, pps. 23-32, which provides
called attention to the inequity of the definition of this eligibility
specific details concerning sponsoring agencies, host agencies and
standard, and the extent to which it was placing an obstacle in
kinds of jobs that make up the Senior AIDES Project.)
the way of people who should be given an opportunity for em-
The National Council firmly believes that the use of varied agencies
ployment. The Project Managers who have been assigned to the
and innovative jobs should be further expanded as soon as funds for
Senior AIDES project during the past 2 years have indicated
expansion become available. It is also the firm belief of the National
that the matter was under consideration. It would be hoped that
Council that its affiliated clubs are invaluable in helping decide upon
a positive reply for the Council's query might have been forth-
coming long before now.
sponsoring agencies.
3. Delays in providing pertinent information as well as in
G. PROJECT PLANNING, ADMINISTRATION AND MANAGEMENT
responding to requests for information. A recent case that vividly
illustrates this problem was that of the upward revision of the
The National Council's experience with its plan of project planning,
poverty income level guidelines issued by the Office of Economic
administration and management has on the whole been very effective.
Opportunity on December 1, 1970. On January 15, 1971, the Sen-
finimal guidelines were established. Planning was done to meet the
50
operating
needs
of
communities staff of young with adults technical the have total provided project. assistance the At the project national directors level, in a dedicated the local
as needed. extensive Illness and death in the small and field with staff such other support
CHAPTER
III
an as aspect that field will visiting as was originally planned. have not permitted
staffed. improve now that that national However, office is this fully is
NEED FOR A FOCAL POINT
has project produced and local staff the responsibility the choice of a local
The Council's director experience has been that making
The National Council of Senior Citizens has had, as one of its
basic purposes, mustering support for, and stimulating, programs and
this even further, an outstandingly the prime high quality of personnel. of the local To improve sponsor
services to meet the problems of the elderly, and especially of the
elderly poor.
director. basic qualifications, These job duties, contractor and salary plans levels to provide a statement of
To this end, it has urged the establishment of an entity working
ble securing a would more serve as a guide to the sponsor for and the local project
from the highest possible vantage point in Government, whose
function would be inspiring, stimulating, encouraging, planning and
and to encourage a uniformly technically qualified make possi-
coordinating programs and services for older Americans. These
job to be done. salary level consistent with the requirements administrator of the
programs and services would, however, be effectuated through
to project. provide Local The advisory prime councils sponsor are will essential take steps to to support an ongoing local
regularly established governmental agencies.
When in 1962 the late Congressman John Fogarty and Senator
be used. guidelines for specific ways in which emphasize such committees this need should and
Patrick McNamara first introduced the legislation known as the
"Older Americans Act," they asked for the establishment of an
Guidelines and for host orientation training for both the Senior
independent U.S. Commission on Aging.¹
Plans sponsoring are to agency supervisors of Senior AIDES AIDES essential. and
With enactment of the Older Americans Act in 1965-establishing
The develop and try these out during the are
a U.S. Administration on Aging some observers hoped that a major
opportunity to enrich for Senior AIDES to participate coming in year.
step had been taken forward.
tional programs background their lives as well education
But progress has been much slower than is needed and desirable.
try to is most desirable. Local as to provide a basic educa-
The Administration on Aging may have a great, unrealized potential;
such learning encourage opportunities community-based possible. educational sponsors institutions will be urged to make to
but, it is questionable whether that potential can ever be realized,
with the agency downgraded to a place near the bottom of the organi-
ministration meaningful are to use in the demonstration for most effective and
Reporting data procedures and forms to provide the
zational totem pole 2 in the sprawling U.S. Department of Health,
Education and Welfare.
Older Americans are concerned, as they see instance after instance
the Guidelines development essential. of these by The the prime Manpower contractor will planning continue and to urge ad-
of the low level of awareness on the part of Federal officials of the
for the conduct of the Senior Administration. AIDES
desperate problems of the elderly in the United States. The Adminis-
policy, updated and at the the rules present and time. These will provide the project are being
tration on Aging has not gained stature and influence sufficient to
raise substantially the awareness of the problems of the elderly through-
directors' operations. regulations which will guide the structure, local project the
out the Federal establishment, nor at the State and local levels of
government. Furthermore, the Administration on Aging has always been under-
financed and understaffed. Thus, even if it had plans and was in posi-
tion to exercise influence through the governmental agencies, it would
be hard pressed to extend itself to any significant degree in such an
effort.
Currently, there has been what must be considered a further indica-
tion of lack of concern for a comprehensive approach to meeting the
problems of the elderly. In response to the administration's pressure
for decentralization from Washington to the field, responsibility for
action under title IV of the Older Americans Act (Research and
Development) and for action under title V (Training) has been
transferred to the Social and Rehabilitation Services in the regional
1 Early history of the Administration on Aging is reported in the March 19, 1971,
Memorandum, "Administration on Aging-Issues Relating to Organization and
Administration," prepared by the Education and Public Welfare Division,
Legislative Reference Service, The Library of Congress, for the U.S. Senate
Special Committee on Aging.
2 For a discussion of effects of HEW reorganizations and policy decisions, see
"Developments in Aging-1967," and "Developments in Aging-1970."
(51)
52
offices of HEW. This would seem to fragment needed action on a
national basis and to further downgrade the influence and ability of
the Administration on Aging to function in the manner intended by
the late Senator McNamara and Congressman Fogarty.
CHAPTER IV
NO EFFECT ON OTHER AGENCIES
RECOMMENDATIONS FOR GOVERNMENT WORKER ACTION
It is not realistic to expect the Administration on Aging as a part
ON EMPLOYMENT OF THE OLDER
of HEW to stimulate, for example, the U.S. Department of Labor to
greater efforts in seeking answers to the income and employment
1. ACTION BY CONGRESS
problems of the elderly. How much influence can it have in stimulating
other governmental departments, when it seems unable to persuade
The most important actions required to meet the employment needs
its parent organization to take a real interest in researching the
of the middle-aged and older workers are:
aging process in humans-biological, psychological, and sociological.
Social scientists, physicians, gerontological experts, all agree that
1. Establishment the creation of
of a
more basic research is needed in the process of aging. Yet, because no
one agency has ever undertaken such research (except to some small
vide training, for and supportive services
degree in the National Institute for Child Health and Human Develop-
ment), many well-trained and dedicated researchers have overlooked
workers. 2. Establishment of a national older American Community
challenges in this field.
At the present time, while there is an Administration of Aging in
Statistics Service program. show that the worker 45 He years is more of age likely and to over lose is his par- job
the U.S. Department of HEW, there is no similar agency, nor even a
ticularly hard hit to by stay unemployment. unemployed longer than the 43 younger percent worker. of the
single person, in the U.S. Department of Labor with responsibility
to stimulate or coordinate policies, programs, or research for the
and more likely 45 years of age and over constitute weeks longer.
elderly.
Today unemployed Sporadic persons unemployment who remain unemployed during middle-aged the for middle 27 years worker, or is the who beginning has had
This lack is a continuously growing concern on the part of the
elderly, themselves, as well as of those who desire that the elderly
of steady poverty-stricken employment old throughout age. The of his his career, own-that finds he when is unable he is to unem- find
have the opportunity to live out their lives with dignity, selfr espect,
and services to which they are entitled. Statistics in the Task Force
ployed-even suitable employment. through Often no fault with Because the loss of of subtle his job, forms he has of also age lost dis-
Report on Economics of Aging and the 1970 Report of the Senate
Special Committee on Aging provide proof of the continuing depriva-
his retirement fund unable benefits. to find employment with pension productive coverage. years,
tion of retired Americans. Studies of needed services and goods
reflect the consequences of inadequate personal incomes to elderly
crimination Thus, in what he is he had would thought save would for his be retirement, his most he finds himself
individuals and couples.
These studies point to the need to continue and expand existing
the barely The years able experience in to which provide older of he the American for Senior even his Community AIDES current program living Service needs. has program demonstrated In the would cities
governmental programs, and to create new programs, partly as a
result of the inferior economic status of senior citizens. Economists
have pointed to the increasing proportion of the elderly in the poverty
that benefit a national both older persons AIDES and program the general has operated, community. it elderly has provided persons;
population.
Studies have indicated that vast numbers of persons 55 years of
where socially-useful the Senior part-time and expanded employment existing for community low-income be useful services. and active The again. pro-
age and over, are far below the poverty income level. With increasing
age, income available to these individuals decreases. Those with little
gram and In improved work-oriented has given older society, persons this a chance is as important-if to not more so-as
education, members of minority groups, women living alone, have
markedly less income when forced out of employment than the better
the a provision of AIDES additional program income. has provided chronically With a minimum understaffed of
educated, the white person, and the woman living with a spouse.
social formal services job training, with but a lifetime of of learning services. experience, AIDES have done
The Senior much needed assistance. Senior
Once unemployed, older workers face greater risk of long-term job-
lessness than younger workers. (See also Chapter I.)
Information such as this should be the basis of comprehensive
AIDES routine have tasks performed so that agency a wide range professionals (e.g., a Senior could AIDE concentrate at a neigh- on
planning and programing by the U.S. Department of Labor to help
the impoverished elderly increase their incomes through meaningful
duties borhood that health only clinic they could assists perform patients to on fill health out initial problems). forms, AIDES freeing
paid employment. There have been some piecemeal efforts to de-
velop programs but the aggressive coordinated effort is lacking. There
have the nurse provided to spend specialized more time services counseling (53) that the agency was unable to
is no indication of a commitment on the part of the U.S. Department
of Labor to help this segment of our society.
54
55
provide because of insufficient staff (e.g., a bilingual Senior AIDE
4. The Chairman of the Departmental Commission, together
translates the advice of a consumer counselor to members of the
with the Special Assistants should serve as the Executive Com-
Mexican-American community).
mittee for the Problems of and Services for the Elderly within the
There are currently three pieces of legislation before the U.S.
U.S. Department of Labor.
Congress that would establish a comprehensive national employment
As an alternative, the National Council of Senior Citizens recom-
program for middle-aged and older workers, and a national older
mends that:
American Community Service program.
These bills are: S. 1307, introduced by Senator Jennings Randolph
1. A Special Assistant for the Problems of and Services for the
(D.-W. Va.); S. 555, The Older American Community Service Em-
Elderly to be established in the office of the Administrator of the
ployment Act, introduced by Senator Edward M. Kennedy (D.-
Manpower Administration of the U.S. Department of Labor;
Mass.); and S. 1580, a bill to provide increased employment oppor-
2. That the Special Assistant be provided with necessary
tunities for middle-aged and older workers, introduced by Senator
professional and clerical staff; and, that
Charles Percy (R.-III.). All of these bills have bipartisan support.
3. The Special Assistant and his professional staff have respon-
The National Council of Senior Citizens strongly recommends that
sibility for implementing congressional, as well as departmental
Congress give immediate and careful attention to these bills, and
intentions in the area of manpower services by taking the initiative
then pass legislation in this session to establish both a comprehensive
in planning, developing, and coordinating programs for the
employment program for middle-aged and older workers and a national
elderly, working with and through existing Manpower operating
older American Community Service Employment program.
organizational and functional structure.
The National Council of Senior Citizens also recommends the
following legislative action to implement the dream of the late Senator
McNamara and the late Congressman Fogarty, to provide for mean-
ingful and effective services to the elderly:
1. The establishment by the U.S. Senate Special Committee on
Aging of a task force of specialists on the elderly to determine
what kind of organization could best serve as a visible and articu-
late spokesmen for the elderly, commanding the respect and
wholehearted cooperation of all our Federal agencies.¹
2. Encouragement of legislation to call for the appointment of a
Special Assistant on Services to the Elderly, responsible to the top
level administrative official in each governmental agency with
major responsibilities affecting the lives and welfare of elderly
persons.
2. ACTION BY THE U.S. DEPARTMENT OF LABOR
The National Council of Senior Citizens recommends:
1. The establishment of a departmental Commission on
Problems of and Services for the Elderly, with a chairman and
small staff to stimulate, encourage, provide leadership and coordi-
nate planning and implementation of plans within the Depart-
ment of Labor.
2. The commission and its chairman would be located in the
office of the Secretary of Labor, and would report to him.
3. Establishment of at least a Special Assistant on Problems
and Services for the Elderly in the top administrative echelon of
each Administration, Bureau or Service within the Department
to serve as liaison with the Departmental Commission, and with
the Administrations, Bureaus or Services whose functions include
research, planning, programing or administering services for the
elderly, to which he or she is assigned.
1 Senator Frank Church, Chairman of the Senate Special Committee on Aging,
announced on June 24, 1971, that he had appointed an Advisory Council to study
the issue described above. The 20-member council conducted its first meeting on
July 8-9, 1971.
to borreq B blind beqied bits појгаетфов odt bevivure
bebae TOVON mode to anoillim iol ,tud
to insurges gaiwory testast edd 918 100q edi VaboT
The
APPENDIXES
Appendix 1
STATEMENT ON POLICIES AND ORGANIZATION OF THE
NATIONAL COUNCIL OF SENIOR CITIZENS
The National Council of Senior Citizens, which was established in
August 1961 as an ad hoc committee to work for the enactment of
health care for the aged under the Social Security system, was in-
corporated as a permanent, private nonprofit agency on March 20,
1962, and the organization held its first annual convention in the
Willard Hotel, Washington, D.C., on May 25-26, the same year.
According to the articles of incorporation, the particular business
and objectives of the National Council are "to provide a nonprofit
and nonpartisan council of senior citizens and senior citizen groups;
to provide educational materials and information; to conduct work-
shops, institutes and other educational programs; and, to act as a
clearinghouse on matters of interest to senior citizens."
The constitution and bylaws which were approved at the first
convention reaffirmed these broad objectives and the National
Council began to move in many areas to focus attention on the plight
of the elderly. Though enactment of Medicare was the first priority
of the National Council's early years, health care was not its only
concern. An adequate income, decent homes, a meaningful retirement,
were other priorities for older Americans which were developed as the
National Council's membership base grew to over 3,000 affiliated
clubs with combined memberships of over 3 millions. The very first
objective which was approved at the initial convention in 1962 was:
"To promote the interests of senior citizens of the United States in
harmony with the national interest."
Consequently the National Council has sought to serve not merely
as a special vested interest group. It has no intention of promoting
competition between the young and the old for necessary service
programs. It has attempted to awaken community councils, State
legislatures and the U.S. Congress to their responsibilities toward the
elderly-by maintaining a balanced effort on behalf of all segments of
the populations. Its members as individuals take pride in accepting
their responsibilities for and their obligations to their children and
grandchildren. As an organization, the members have formed coalitions
with groups of younger people to press for reforms, such as strength-
ened consumer protection and improved health care delivery, that
would benefit all age groups.
Nonetheless, it must be recognized that today's elderly are the men
and women who lost jobs, homes and savings in the Great Depression.
(57)
58
prosperity They survived the depression and helped build a period of unparalleled
but, for millions of them, the depression never ended.
erty
Today population. the elderly poor are the fastest growing segment of the pov-
elderly, Council seeks:
To meet the the goal of a better life for all Americans, including the
Appendix 2
with An adequate dignity; income, in retirement, to permit all elderly to live
lishment Medicare and Medicaid improvements looking toward the estab-
MAJOR LEGISLATION CONCERNING EMPLOYMENT OF THE
of comprehensive health care;
ELDERLY SINCE 1960 1
relief Decent for housing at rents the elderly can afford, and property tax
the Employment elderly programs in local community service, designed for
elderly home owners with limited incomes;
employment of the elderly and a history of legislative actions attempt-
This appendix contains a summary of legislative actions concerning
tation Development service of adequate local and nationwide public work; transporta-
who are physically capable and want to
ing to create a Senior Community Service program.
poor. protection and adequate legal services for the and elderly
Consumer for the elderly, including reduced fares;
SUMMARY OF MAJOR LEGISLATION REGARDING
EMPLOYMENT OF THE ELDERLY, 1960-70
The is Council recognized that the primary ingredient of
The of the last decade is indicated in the report of the
financial financial independence. A who well-being
that age comes an adequate from income and the social and psychological a happy old
Senate progress Special Committee on Aging, "Developments in Aging-
he lives. worries, is better able to contribute person to the is freed of
tion 1970, to authorize the President to designate the first full week May
which lists as a major legislative action "the passage of of legisla-
making him This, feel in turn, adds immeasurably to the person's society in which
as 'National Employ the Older Worker Week.'
needed and useful. morale by
few of enacted legislation which have dealt directly such em-
With the exception of the Age Discrimination Act of 1967, there with were
ployment the Manpower Development and Training Act and with the
pieces of the elderly. Major innovative domestic legislation, Economic
Whong no OT 97001 of
trigity broad boarrifteer
Opportunity as Act, contained no provisions dealing specifically
elderly. Only through amendments in subsequent years was any
zino tog saw to
asw ETROY visable to
attention given to the issue.
The most comprehensive manpower legislation of the decade, the
80 beqoleveb Inteniment 0 To
019W doidw nA
Employment for the middle-aged and older worker, was vetoed by President
and Training Act of 1970, which had specific provisions Nixon.
VIOV III 8 eqideredmem benidenos
000,8 adT of gideredment
The legislation that has been passed has not had the impact hoped shows
Je bevozqqa daive edulo
for its sponsors and supporters. The record of achievements inade-
to to BBW atomorq avitoojdo
piecemeal by efforts-programs that were never funded or funded only
small quately, of the problem, pilot programs that were successful has been
programs that didn't succeed because they attacked but a
gaitomona Jon to of / quommed
on
were done to implement the objectives of two major pieces of legislation estab-
never part expanded to the nationwide programs. Little
eliormos TOT BR
lished the Administration on Aging, and the Age Discrimination to
affecting the elderly-the Older American Act of 1965, which Act
brawes of
lo
III lla to Harled no B
of 1967. The AoA, which was to be a major government agency
abing asket
of
has promote never been more than a small agency hidden in the HEW complex.
new programs for the elderly, and coordinate existing ones,
1 material for this appendix is drawn from four major sources: The Report 1970);
OJ to
of the first in Aging, a report prepared annually since 1963 by the Americans U.S. from
The 18 months of the Senior Aides program (published January 1, Senate
Developments Committee on Aging; Major Legislation Affecting Older The Li-
besingoo97 lla
brary 1960 of Congress; and Senior Citizens News published monthly by the
Special through 1969, by Evelyn Howard, Legislative Reference Service, National
(II bus
Council of Senior Citizens.
(59)
60
61
A. AGE DISCRIMINATION
The Social Security Amendments of 1965 and 1967 increased the
Although one of the objectives of the Older American Act
amount a beneficiary could earn without having his Social Security
crimination been able to do little to achieve it. When the
the provide AoA "opportunity has for employment without age discrimination,' was to
benefits reduced. ("Major Legislation," Legislative Reference Service,
pp. 2 and 27).
prestige responsibility of enforcing its provisions. The AoA has not given the
Act was passed, the Department of Labor was Age Dis-
Neither the Public Welfare Amendments nor the Social Security
Amendments have substantially increased the number of elderly
adequate necessary to ensure that the Department of Labor had the
employed persons. In the case of the Public Welfare Amendments, the
of the attention to enforcing the provisions of the act. The devoted
slowness of the States to implement the amendments hindered a test
their act was to "promote the employment of older workers intent
of their effectiveness. Even in the States, however, that implemented
labor and 65 years old by employers, employment workers
between on 40 ability; and to prohibit age discrimination against based
the amendments, there was no discernible increase in employment of
old-age assistance recipients.
an education organizations." It authorized the Secretary of Labor agencies, to and
Part of the explanation is that the amount of earnings that bene-
ment for older and workers. research program to reduce the barriers to carry employ- on
ficiaries were allowed to keep was so small as to be negligible.
The most important reason, however, for the ineffectiveness of both
(Major Legislation, Legislative Reference Service,
the Public Welfare and Social Security Amendments is that no suitable
If a complaint is filed, efforts must first be made to eliminate p. 24.)
employment was available for the overwhelming proportion of elderly
persuasion alleged discriminatory practice through conciliation, conference the
persons. Without the parallel creation of job opportunities, the income
attempts have before legal proceedings are instituted. Only after and
provisions of the amendments were meaningless.
available for enforcement failed are the of the civil act. remedies and recovery procedures such
C. MANPOWER DEVELOPMENT AND TRAINING ACT
end Aging's of annual report, "Developments in Aging," show that on
The 1969 and 1970 editions of the Senate Special Committee
The Manpower Development and Training Act of 1962 did not deal
been instituted 1970, "only 15 court proceedings to enforce by the
directly with the elderly but it "was expected to help middle-aged
of the failure under the act." (See Chapter I, for compliance discussion had
and older workers, since many of the unemployed are age 45-and-
to enforce effectively the Age Discrimination more Act.)
over and are more heavily represented in the long-term unemployed."
("Major Legislation," Legislative Reference Service, p. 5.)
B. PUBLIC WELFARE, AND SOCIAL SECURITY AMENDMENTS
Four years later, the 1966 Amendments to the act had a provision
which directed the Secretary of Labor to "provide, where appropriate,
employment. rity Amendments encouraged their beneficiaries to seek part-time Secu-
Provisions of both Public Welfare Amendments and Social
a special program of testing, counseling, selection and referral of
persons 45 years of age or older for occupational training and further
schooling designed to meet the special problems faced by such persons
The Public Welfare Amendments were based upon a major
in the labor market." ("Major Legislation," Legislative Reverence
recipients to supplement their principle benefits
Service, p. 22.) There has been no consistent effort by the Department
of Labor to implement that provision. (See Chapter I, for a full
month time-permitted of States to allow recipients to retain the first
The Amendments of 1962 contained provisions that-for
discussion of the U.S. Department of Labor's services and programs
for the elderly.)
of reduced. States were given the option, in determining assistance
checks earned income without having their old-age up to $30 a
D. ECONOMIC OPPORTUNITY ACT
$30 to $50. October 1965, the amount of income was monthly increased earned
income. disregarding In the first $10 and half of the next $40 of need,
The Economic Opportunity Amendments of 1966 "provided that
the Office of Economic Opportunity carry out studies and investiga-
on Aging, "Developments p. 27). in Aging," 1967, U.S. Senate Special Service, Committee p. 3
and ("Major Legislation", Legislative Reference from
tions to develop programs providing employment opportunities and
public service opportunities." ("Major Legislation," Legislative
Reference Service, pp. 22, 23.)
considering 29 adopted the 1965 Amendments, and Amendments,
By States the end had of 1970, seven States had adopted the 1962
The Economic Opportunity Amendments of 1967 pro-
vided programs designed to deal with long term unemploy-
Department implementation. Thirteen States had informed one State was
ment among persons 55 years and older. Employment of
Alabama, number and of old-age assistance recipients, three (New with the
largest implement the Amendments. Of the five States they did not
wish to of Health, Education and Welfare that the U.S.
such persons as regular, part-time and short-term staff in
component programs would be encouraged. A new program,
Senior Opportunities and Services, was established to identify
want to implement Texas) the are amendments. included among those States that did York, not
and meet the needs of older, poor persons above the age of
60 in many areas such as in the development and pro-
vision of new employment. Employment of those 55-and-
(00)
over was encouraged in Community Action programs.
("Major Legislation," Legislative Reference Service, p. 25.)
62
63
The full implementation of the 1967 Amendments, which were in-
The funds to carry out the programs described in this provision of
tended to increase dramatically OEO's aid for the elderly poor, was
the amendments were never allocated
severely limited by lack of funds. (OEO Annual Report to the U.S.
Senate Special Committee on Aging, Developments in Aging, 1968,
F. EMPLOYMENT AND TRAINING OPPORTUNITIES ACT OF 1970
p. 201.)
Because of inadequate funds, OEO has placed its emphasis on
On December 12, 1970, the Senate and House passed the Employ-
serving the older poor through its general programs. (OEO Annual
ment and Training Opportunities Act. The act incorporated the
Report to the U.S. Senate Special Committee on Aging, Develop-
major provisions of the earlier Middle-Aged and Older Workers
ments in Aging, 1969, p. 257.) There have been expressions of concern
Employment Act which had been introduced in May of the same
by OEO officials and several reorganizations within the agency, but
year by Senators Jennings Randolph, Harrison Williams and Edward
there have been no major programs for the elderly poor.
Kennedy.
The OEO-funded Manpower programs, which are administered and
This bill, if enacted, would have established a comprehensive
operated by the Department of Labor, have largely ignored the
national effort to provide special job development, training, and
elderly. Fewer than 6,000 elderly persons were employed in 1970 by
supportive services for older and middle-aged workers.
Operation Mainstream, the major manpower program for the elderly
Among the major provisions for middle-aged and older workers
(see Chapter I, for more discussion). Of the over 200 Senior Oppor-
that the Employment and Training Opportunities Act contained are:
tunity and Services programs, only several have employment as their
Establishment of a midcareer development services pro-
primary focus.
gram in the Department of Labor to assist persons 45 and
The Foster Grandparent program, which has received the most
older to find employment by providing training, counseling
publicity of any antipoverty program for the elderly, was not sub-
and other needed services.
stantially increased when its status changed from an experimental
Directs the Secretary of Labor to designate full-time per-
program to an ongoing program.
sonnel experienced in manpower problems of middle-aged
The program recruits, trains, and employs elderly poor persons to
and older workers to have responsibility for program leader-
work part time with neglected, disturbed and disabled children.
ship, development and coordination.
It was established as an experiment in 1965 and administered
Supportive services for occupational advancement for
jointly by the OEO and AoA until 1970 when it was transferred to
employed workers who may be in a "dead-end" job.
the AoA and became an ongoing program. As an experiment in 1968,
Training for unemployed individuals to prepare them for
it employed 4,000 foster grandparents; as an ongoing nationwide
for needed jobs in the economy.
program in 1970, it had 4,300. Now, as mentioned earlier in this
Broad authority for the Secretary of Labor to conduct a
report, the administration is urging that the program become a
wide range of research and demonstration projects to focus
volunteer program and be transferred from AoA to ACTION, an
on the special problems of the mature worker.
agency that will coordinate volunteer activities.²
Authorizes the Comptroller General to undertake a study
to help increase job opportunities for older persons in the ex-
E. VOCATIONAL REHABILITATION
ecutive branch in part-time employment and job redesign.
Directs that a special section in the manpower report of the
In a speech on the Senate floor, Senator Harrison Williams, then
President be devoted to means of maximizing employment
Chairman of the Senate Special Committee on Aging, called attention
opportunities for persons 45-and-over in federally supported
to a provision of "The Vocational Rehabilitation Amendments of
manpower programs. ("Developments in Aging,' 1970,
1968" that was of particular importance to the elderly.
U.S. Senate Special Committee on Aging, pp. 94, 95.)
The Vocational Rehabilitation Amendments of 1968 in-
On December 16, 1970, President Nixon vetoed the bill. In his
cluded a provision that expanded "the definition of disad-
veto message, the President expressed his strongest opposition to the
vantaged individuals" to include individuals disadvantaged
bill's two provisions that created public service jobs and increased the
by advanced age, for the purposes of determining eligibility
number of narrow-purpose programs in the Department of Labor
for services under the vocational evaluation and work-adjust-
from 14 to 22.
ment program proposed by the bill. Thus, for the first time
The President's message stated that the bill had been vetoed:
in the history of Federal vocational rehabilitation legislation,
older persons will be eligible for vocational rehabilitation as-
Because it ignored the lessons of the last decade and would
sistance solely on the basis of age, without reference to
create a national manpower program that would relegate
whether they are suffering a physical or mental disability.-
large numbers of workers to permanent, subsidized employ-
From "Development in Aging," 1969, U.S. Senate Special
ment. Such a program would limit, not expand individual
Committee on Aging, p. 65.
opportunity.
The conference bill provides that as much as 44 percent
2 The transfer of these two programs to ACTION took place on July 1, 1971.
of the total funding in the bill goes for deadend jobs in the
public sector. Moreover, there is no requirement that these
64
65
public sector jobs be linked to training or the prospect of
In answering the charge that the bill would raise the number Nelson of
other employment opportunities. WPA jobs are not the
narrow-purpose program categories from 14 to 22, Senator
answer for the men and women who have them, for govern-
said:
ment which is less efficient as a result, or for the taxpayer
who must foot the bill. Such a program represents a re-
The numbers used in the veto message are meaningless.
version to the remedies that were tried 35 years ago. Surely
There are not 14 programs in the present law and there are
it is an inappropriate response to the problems of the
not 22 programs in the vetoed bill.
seventies.
Most of the existing programs are not even mentioned in
The conference bill raises the number of narrow-purpose
the existing law. They operate under the broad authority
program categories from 14 to 22, whereas the administra-
given to the Secretary of Labor.
The Labor Department has repeatedly assured us that
tion's proposal would have established a single, broadly
defined manpower program. These narrow categorical pro-
most of the present programs will be continued, in approxi-
grams would continue to hamstring the efforts of communi-
mately the same manner, whether they are mentioned in
ties to adjust to change in their local needs.
the law or not. (Senate debate as reported in "Senior Citizens
Transitional and short-term public service employment
News," January, 1971.)
can policies. be a useful component of the Nation's manpower
But public employment that is not linked
but failed by 8 votes to meet the necessary two-thirds requirement for in
On December 21, the Senate voted 48 to 35 to override the veto,
to real jobs, or which does not try to equip the individual for
passing the bill without the President's signature ("Developments
changes in the labor market, is not a solution. ("Congres-
Aging," 1970, p. 95).
sional Record," December 16, 1970, pp. 20348-49.)
Senator Gaylord Nelson, who had been the floor manager for the
original legislation and who led the fight to override the veto, countered
the reasoning of the President's message.
In responding to the message's charge that the bill would create
"deadend WPA-type jobs," Senator Nelson said:
Nothing could be further from the truth.
In fact, the most significant dispute we have had with the
administration spokesmen on this issue has been our absolute
determination that the public service jobs in this bill would
be good jobs, with a strong guarantee of training, opportuni-
ties for promotion and career development, and assurance
that the employees would either move up within public
service or out to jobs in the private sector.
The Labor Department tried to make certain that the
public service jobs in the bill were purely temporary by
limiting the period of employment-limits ranging from
6 months to 2 years were proposed. We defeated this position
in committee and on the Senate floor.
The Labor Department tried to tie the hands of Mayors,
Governors and county executives with a request that they
agree in advance to move public service employees into
private jobs or lose some or all of their 80-percent financing
of the program.
This was a totally unworkable provision. How can the
Mayor of Seattle, with unemployment at 12 percent or
more of the work force, certify in advance that he will
place the people in private jobs next year? It was one more
step in the effort to downgrade public service employment
and the Senate and House conferees rejected this proposal.
67
A year later, the Older Americans Act was passed. It called for:
Pursuit of meaningful activity for the elderly within the
widest range of civic, cultural, and recreational opportunities.
In a report to Congress in June 1965-The Older American
Appendix 3
Worker-Secretary of Labor Willard Wirtz said:
There are many community tasks on which older persons
can be employed. There are substantial community needs
HISTORY OF THE SENIOR COMMUNITY SERVICE PROGRAM 1
that have not been met and for which local authorities do
not have funds.
1. FIRST WHITE HOUSE CONFERENCE ON AGING
A great deal of this work can be done by older workers and
would be if Federal assistance were available in a form similar
According to William E. Oriol, director of the professional staff of
the U.S. Senate Special Committee on Aging, the origin of this con-
to the present financing of the Neighborhood Youth Corps.
Community work would recapture and preserve human
cept goes back to the 1961 White House Conference on Aging.
abilities, utilize manpower, provide satisfying occupation, and
The legislation which led to that conference stated that "the
forestall additions to the mounting welfare case load.
Congress hereby finds and declares that the public interest requires
Local communities should be encouraged and assisted to
the enactment of legislation to formulate recommendations for im-
mediate action in improving the development of programs to permit
develop employment opportunities in cooperation with pri-
the country to take advantage of the experience and skills of the
vate enterprise as well as through public and nonprofit agen-
older persons in our population."
cies. Participation by private enterprise in the administration
of Job Corps projects and on-the-job training programs under
Testifying before the U.S. Senate Special Committee on Aging's
Subcommittee on Employment and Retirement Incomes of the
the Manpower Development and Training Act and the Job
Elderly in December 1963, Daniel P. Moynihan, Assistant Secretary
Development program opens new horizons for ingenuity and
of Labor in the Kennedy administration, told of the need for more
innovation. There are, and are likely to continue to be, however, tens
part-time employment opportunities for senior citizens.
of thousands of workers with inadequate sources of income
Moynihan emphasized the great potential value to older persons of
the Senior Citizens Community Planning and Services Act of 1963.
and no employment prospects, who are over 55, have
exhausted unemployment compensation and are not yet
One part of that bill provided $10 million per year, for 5 years, to
State and local governments and approved nonprofit agencies to
eligible for retirement benefits.
encourage the development of special employment projects for older
It is not right or reasonable that those whom the economy
persons in local community activities.
has displaced at ages between 55 and 65 in the course of
technical progress, and whom it will not take back into
2. NATIONAL SENIOR SERVICE CORPS SUGGESTED
productive employment, should suffer because of the un-
availability of work opportunity. A special program to meet
In 1964, the Senate Special Committee on Aging published recom-
the income needs of this limited group should be considered
mendations and comments urging increased employment opportunities
not only on its own merits but to reduce the growing pressure
for the elderly. This report called for the establishment of a National
for a costly early retirement system.
Senior Citizens Service Corps that would serve the needs of older adults
who would welcome the opportunity for useful activity and the general
3. LEGISLATIVE BILLS INTRODUCED
public which would benefit from their services.
The committee asked Congress to enact legislation authorizing a
In 1965, Charles E. Odell, now Director of the Office of Systems
new program of grants for experimental and demonstration projects to
Support, Training and Employment Services, Manpower Adminis-
stimulate needed employment opportunities for older Americans.
tration, Department of Labor, suggested to the Senate Special Com-
The committee urged:
mittee on Aging that a Senior Service Corps should be established.
The Federal Government, through the Department of
Odell wrote the Committee:
Labor, should provide funds on a matching basis to State
There is a great need to initiate action on a national senior
and local governments or approved nonprofit institutions for
citizens service corps and a counterpart neighborhood senior
experiments in the use of elderly persons in providing
citizens service corps which would provide both paid and
needed services.
nonpaid service opportunities for qualified and trained
middle-aged and older people from the ranks of the poor.
1 Appendix 3 is reprinted from the report of the first 18 months of the Senior
AIDES program (published January 2, 1970).
Following the 1965 and 1966 antipoverty hearings before several
subcommittees of the Senate Special Committee on Aging, the Sub-
(66)
68
69
committee on Federal, State and Community Services recommend
legislation Corps. authorizing establishment of a National Senior Service
This legislation placed responsibility for funding and directing the
program in the U.S. Department of Health, Education, and Welfare.
On February 4, 1966, Senator Harrison Williams, Jr., of New
The Executive Committee of the President's Council on Aging
Jersey, introduced Senate Bill S. 2877 which called for Federal
approved the proposed Senior Service program. The Department of
"funds and technical assistance to nonprofit private organizations,
Health, Education, and Welfare included this proposal as one title-
municipalities, counties, and States for community service programs
Special Projects To Stimulate Employment Opportunities-of the
to utilize the abilities, enthusiasms, and energy of men and women
Smathers-Mills bill introduced at HEW's request. Responsibility for
of age 60 and over."
this specific title was assigned in the bill to the Secretary of Labor.
On May 9, 1966, Senator George Smathers, of Florida, introduced
a bill similar to S. 2877 but calling for the utilization of highly talented
B. LABOR SECRETARY MAKES A COMMITMENT
professional and specialized types of older people.
Hearings on these bills in May and June of 1966 produced useful
In 1967 testimony on S. 276 before the Subcommittee on Aging,
information on what a national community service program could
Secretary of Labor Wirtz made a commitment to implement the
objectives of S. 276 to set up a program using current appropria-
mean to elderly participants and to their neighbors. One witness said
that the program could be as important to one generation of Amer-
tions, administrative structures, and procedures recommended to
icans as the GI Bill of Rights after World War II was to veterans of
Congress.
that era.
Assistant Secretary of Labor Stanley H. Ruttenberg immediately
In his testimony at these hearings, William R. Hutton, Executive
assigned Louis H. Ravin, his Special Assistant for Older Workers, to
Director of the National Council of Senior Citizens, urged:
follow through on this commitment. Ravin moved to set up a joint
committee of representatives of the Department of Labor, Depart-
A program that meets the needs of those who have to
ment of Health, Education, and Welfare, and Office of Economic
work because of financial requirements or to satisfy a desire
Opportunity to:
to continue to participate.
1. Arrive at definitions and divisions of responsibility and
There is little doubt that more than nine out of 10 older
allocation of funds.
people seeking these opportunities will be motivated pri-
2. Determine funds to be earmarked for the Community
marily by income needs, although they will also welcome
the opportunity to be of service.
Senior Service program, over and above funds expended for such
purposes during 1967. (This additional sum was to be not less
than $9 million from all sources.)
A. BILL PASSES U.S. SENATE
3. Identify the appropriate and feasible sources of such funds
Senator Williams' bill, S. 2877, passed the Senate in the 89th
from appropriations for the Economic Opportunity Act, the
Congress, but the House did not act on it.
Older Americans Act, and the Manpower Development and
Williams for himself and Senator Joseph S. Clark of Pennsylvania,
On January 12, 1967, Senate Bill S. 276 was introduced by Senator
Training Act.
4. Develop methods by which the Labor Department's Bureau
with bipartisan support. Cosponsors were Senators Hiram L. Fong
of Work Programs, the U.S. Employment Service, and the Bureau
(Hawaii), Philip A. Hart (Mich.), Vance Hartke (Ind.), Daniel K.
of Apprenticeship and Training could promote, establish, and
Inouye (Hawaii), Jacob K. Javits (N.Y.), Edward M. Kennedy
support community service programs for persons 55 years of
Edward V. Long (Mo.), Walter F. Mondale (Minn.), Wayne Morse
(Mass.), Robert F. Kennedy (N.Y.), Thomas H. Kuchel (Calif.),
age and over through national, State, and local public and
private nonprofit sponsors.
(Ore.), Gaylord Nelson (Wis.), Claiborne Pell (R.I.), Jennings
Special Assistant Ravin sought to have $10 million earmarked
Randolph (W. Va.), Abraham Ribicoff (Conn.), George A. Smathers
for this program. He recommended that $6- to $7 million come from
(Fla.), and Ralph W. Yarborough (Tex.). On February 28, Senator
the antipoverty funds available to the Labor Department under a
(Iowa). Williams asked that the next printing include Senator Jack Miller
1967 amendment to the Economic Opportunity Act jointly sponsored
by Senator Gaylord Nelson (Wis.) and Congressman James Scheuer
identical or similar bills.
Forty-seven members of the House of Representatives introduced
(N.Y.), and that an additional $2- to $3 million come from the unap-
portioned account of Manpower Development and Training Adminis-
This legislation would have amended the Older Americans Act of
tration funds.
1965 to provide for a National Community Senior Service Corps. It
Consequently, although S. 276 was not enacted into law, Secretary
proposed that sponsors of community service projects would be non-
of Labor Wirtz used his discretionary authority to put the concept
profit or public agencies-schools, hospitals, community development
of a Senior Community Service program into operation, using funds
recreation members and the like. Only people 60-and-over would be
that were available to the Department of Labor for related programs.
employed. Rates of pay would be "appropriate and reasonable."
70
C. CONTINUING EFFORTS To ESTABLISH SENIOR COMMUNITY SERVICE
PROGRAM
Since the demonstration Senior Community Service programs
have operated successfully for several years, there have been renewed
efforts to pass legislation to create a national program.
Appendix 4
During the current session of Congress, Senator Kennedy along
with 15 other Senators has introduced the Older American Community
Service Employment Act (S. 555). The bill is identical to S. 3604
which was introduced in 1970 (see also Chapter I.)
THE ROLE OF THE PUBLIC EMPLOYMENT SERVICE
The proposed legislation would provide new opportunities for com-
(MANPOWER SERVICES)
munity service employment in antipollution and community beautifi-
cation programs and in public health, public education and community
In planning the Senior AIDES program, the National Council of
social service programs. The Senate Special Committee on Aging and
Senior Citizens followed the precept laid down in 1967 by the then
the Subcommittee on Aging of the Senate Committee on Labor and
Secretary of Labor, Assistant Secretary of Labor for Manpower, and
Public Welfare have scheduled hearings on the bill for July 1971.
Special Assistant for Older Workers, that the services of existing
Department of Labor organizational units be utilized to the maximum
in developing and carrying on the demonstration community senior
service projects. This meant utilizing to the fullest degree the Public
Employment offices services and the Concentrated Employment
program structure and personnel.
With the cooperation of the Director of the United States Employ-
ment Service the National Council of Senior Citizens was able to
secure the part-time services of a retiree from Federal service, to
participate in the planning and development of the program. As an
employee of the U.S. Department of Labor, she had come to know
the strengths and weaknesses of the State and local offices of public
employment service. She had also participated in efforts to improve
local office services to older workers.
At the time the Senior AIDES program was planned, the Man-
power Administration of the U.S. Department of Labor had as a
major organization unit, operating with the States a public "em-
ployment service." The unit, at the national level was identified as
the "U.S. Employment Service." The counterpart in each of the
States, was the "State Employment Service, affiliated with the
U.S. Employment Service" which operated local Employment Serv-
ice offices. Today, the U.S. Employment Service has been eliminated
and its function allocated to various units within the Manpower
Service. In most, if not all, of the States, the State Employment
Service is now absorbed into the State Manpower Service, with re-
sponsibilities beyond those of just employment service. Local offices
likewise have been restructured and are now local Manpower Offices,
which include the functions of the public employment services. Not-
withstanding the foregoing, this document will continue to identify
the agencies providing public employment service functions as the
U.S. Employment Service, the State Employment Service, and the
local Employment Service offices.
1. CONSTANTLY SHIFTING EMPHASIS
The history of the U.S. Employment Service and its affiliated State
and local employment service offices reflects the fluctuations in em-
phasis and attitudes, growing out of changing pressures, in the actions
it has taken or has not taken. These are the constantly changing
(71)
73
72
States, however, obviously exercise great discretion in the inter-
emphases and attitudes placed upon the public Employment Service
by the national policymakers and money dispensers-the national
pretation and implementation of the policies.
For many years, funds were allocated to the States, for the
administrations, the secretaries of the U.S. Department of Labor,
operation of their Employment Service programs on the basis of
the U.S. Budget Bureau directors and their top level staff.
the number of placements made. No matter how much the Na-
Starting out as a placement agency in the days of the Wagner-
tional Office technicians might attempt to encourage and train
Peyser Act, its emphasis shifted continually, from placement, to a
local office staffs to provide quality service, it was in fact quantity
labor exchange, to manpower training, etc.-each in one way or
service that was the guiding factor. Thus, the offices provided
another reflecting the needs of a constantly changing economy.
"services" to those whom it was easiest to place in jobs-regard-
To carry out effectively the added and/or new functions and
less of the number needing more than mere placement service.
responsibilities that resulted in the changing emphases, additional
"Counseling" interviews given to applicants-despite the efforts
funding, particularly for additional staff, would be necessary. If the
of the National Office technicians-were too often anything but
U.S. Department of Labor indicated to Congress that without ade-
quality service because quality service would cut into the "num-
quate increased funding the U.S. Employment Service and its affiliated
bers" game. Obviously, long-time adherence to poor procedures
State agencies could not provide the services that Congress expected,
become a part of a staff person's normal method of approach and
there is little evidence that such information was considered realisti-
attitude which could not normally be changed on an instant
cally in legislation proposed and enacted. In other words, legislation
notice.
setting up operational and program increases and changes rarely
Frequent reorganization of the administrative structure of the
provided adequate funds to enable the Employment Services to
National Office of the Employment Service, and similar reor-
implement effectively congressional intent. Thus, one program after
ganizational activity at the State and local levels, created an
another was added to the workload of already overburdened dedicated
atmosphere that was not conducive to stability in any phase of
staff, with the result that no programs could be carried out completely
the conduct of the Public Employment Service Program.
and effectively on a sustained basis.
"Programs" were allocated to the Employment Service, but staffing,
3. FAULT AT THE TOP
space, equipment, etc., were tailored to available funds rather than
the actual needs of the added or new programs.
What, in effect, this says is that the weaknesses at the top permeate
Furthermore, the special interest group which was in the ascendency
and hamper effective action. While some of the onus for failure to
at a given time, received congressional attention and priority in action
perform as effectively and responsively as desirable must fall on some
regardless of what this did to the Employment Service's ability to
of the staff at lower levels, the basic fault is at the top level.
carry out its already ongoing and needed programs effectively.
There has been resistance on the part of many public and private
As a result, the emphasis over the years was increasingly away
nonprofit agencies to the use of the local offices as the vehicle for
from job placement and increasingly on manpower "services"-
recruiting and referral of prospective workers, and particularly of
especially manpower training.
older workers. There is some unwillingness to use this agency even
It is unfortunate that neither the top level governmental persons
now. Some of the resistance and dissatisfaction has been warranted.
who were the policymakers, nor those who appropriated and dispensed
The National Council of Senior Citizens' staff, however, considered
the funds, nor those responsible for the performance of the responsi-
that the fault was not entirely with the local public employment office
bility of the Employment Service insisted upon a plan which would
and its staff. Some local program sponsors had never used the public
put the various programs and their operation into proper perspective.
employment offices because of the reputation this governmental
There has been no coordinated effort to achieve a balanced program
agency had acquired of failing to supply "satisfactory" referrals.
for the total of necessary services-readying manpower for jobs, seek-
Others indicated that they had had less than effective or timely
ing opportunities for full-time and part-time employment of all cate-
assistance from the local offices.
gories of job seekers, and placing these job seekers with employers in
The National Council staff which was responsible for developing
the private, public, or community-service sectors of our society.
the Senior AIDES operation took the position that until a sincere,
intelligent effort was made by the local program sponsor to use
2. OTHER HANDICAPS
the local offices of the public employment service and found these
offices ineffective or dilatory, the requirement that all recruits must
Additional factors added immeasurably to the difficulties of the
be screened and referred to the local sponsor must be followed.
U.S. Employment Service to carry out its responsibilities, namely:
Recruitment of applicants for screening and referral could be carried
The fact that although the State Employment Services were
out by a variety of agencies.
funded 100 percent by the Federal Government, they were State
The history of the public employment service, going back to
agencies and thus were not under the direct control of the U.S.
periods before 1950, shows a deep concern to provide effective service
Employment Service. Efforts to federalize this operation followed
to the older person in search of employment. Its ability to carry out
the close of World War II. These efforts failed. The administra-
an effective program to that end has vacillated to the degree that the
tion in the field is under the control of the individual State
administration, the Secretary of Labor, and the Congress have
governments. Policies for the operation of the State and local
"changed signals" during the course of the years. When these have
Employment Services are promulgated at the national level.
74
75
given evidence of interest and desire that this group of citizens be
assistance from the local employment offices, have once again resulted
given specific attention, and when funds have been earmarked spe-
in a lessening of effective operation and service to the elderly.
cifically to promote this interest, records show improvement and the
This should not be construed to mean that the limited number of
approach of effective service. But history indicates that pressure to
dedicated individuals assigned to "older worker services" have not, in
bring other categories of population to the center of interest peri-
fact, attempted to provide the needed leadership. It does mean that
odically causes services to the elderly to diminish. Thus, the public
without the support of positive congressional intent expressed in legis-
employment service programs have in effect operated as a "yo-yo,"
lation and without support in funds and numbers of staff to do the
going up and down as interest and funding have risen and dropped.
necessary job, the services provided older persons, and particularly the
impoverished elderly, have not been as intensive and effective as
4. SUCCESSFUL STUDY
needed. Most of these elderly, once they have exhausted their unemploy-
For example, in the middle 1950's, with growing pressure based on
ment insurance benefits (requiring them to report to local offices as
economic conditions, the Bureau of Employment Security undertook
evidence of active search for jobs which they don't get) cease to visit
an intensive and objective study to determine the employment
the local offices. They are rarely called in for consideration for job
situation and needs of the 45-year-and-older person thrown out of
openings. They consider trips to the local office a useless expenditure
employment. At the same time, it undertook an objective evaluation
of their limited funds for transportation.
of the practices of the public employment service offices in assisting
In addition, review of the ineffective assistance in job finding,
persons 45 years of age-and-over in their efforts to find employment.
particularly with reference to many establishments seeking workers,
This phase of the study was intended to provide a basis for improving
indicates several reasons for failure to receive referrals. Chief among
the effectiveness with which these offices can and should assist older
these reasons is that, although now an age antidiscrimination law is
workers in their search for jobs. Intensive experiments were under-
in effect, employers continue to set unrealistic requirements (for edu-
taken to learn how this could be accomplished. The pilot study was
cation and experience) for their job openings. At the same time, too
made by the Minnesota Employment Security Agency, with the
many local office personnel are interpreting possible eligibility for job
cooperation of the University of Minnesota, under the direction (and
openings on far too restrictive an interpretation of rules and
funded by) the Bureau of Employment Security.
This led to what became known as the "Seven City Study." It
regulations. The insistence of the National Council of Senior Citizens, as the
was intended that the time for "studies" would then be ended and a
prime sponsor for the Senior AIDES program, on use of the public
constructive program would follow. (See Chapter I.)
Employment Service has led to some very interesting developments.
The results of the study were published. Based on this research, a
These developments have demonstrated that given intelligent and
plan of action was developed to improve and expand the services.
consistent interpretations of their needs by both the representatives
Funds were made available to every State to "tool" up and put an
of the prime sponsor and by local program directors, the local offices in
intensive program into operation. Regional meetings to train per-
most of the Senior AIDES demonstration areas did and are doing an
sonnel to be fully involved in providing the improved service were
outstanding job not only in recruiting but particularly in screening and
undertaken. The then Secretary of Labor Mitchell and the administra-
referring applicants for the Senior AIDES job slots.
tion were committed to extend to the maximum the service which
These developments indicate that:
local employment office personnel would provide to this segment of
the population.
1. Most of the local project directors would not want at this
However, the improvement in services was not followed up on a
time to carry on their programs without the assistance of the local
continuing basis. Other "priorities" for service and funding were
public employment offices.
loaded into the Department of Labor's Bureau of Employment
2. Once having been convinced that the kind of persons needed
Security. Pressure groups representing, for example, the handicapped
to fill the job slots are available through various recruitment
and veterans, and then of disadvantaged youth, forcefully prodded
sources, including the local offices' active and inactive files, the
the Congress into "categorical" actions.
offices have done an outstanding job of screening and referral.
3. Having become really familiar with the kinds of duties
Instead of setting and carrying out a program that took the employ-
needed for nonprofessional jobs and for jobs to support pro-
ment needs of each "category" into consideration, and provided an
fessional staff, local employment office personnel are more
equitable distribution of funds, staff and service to each, in relation
realistically interpreting the possible competences of the im-
to its needs, a single group would be emphasized, at the expense of
poverished elderly.
the other groups.
4. Having come to realize that there are jobs for which on-the-
job training or close supervision and direction are needed, rather
5. SERVICES TO ELDERLY DECLINE
than long-term job training, the local employment office person-
nel are more realistic in evaluating the potential of the impover-
Consistent emphasis on serving older persons seeking employment
has declined in recent years. Limited staff, limited funding, great
ished elderly.
priority to youth needs, and "generalist" services to those requiring
76
77
5. Based on experience with Senior AIDES who work with
It is human nature that when staff is confronted with tremendous
some local employment office, management of these offices are
workloads, those who require the least time and attention get service
becoming more and more aware of the fact that these impover-
at the expense of others who need a greater amount of time-consuming
ished elderly have real capacity to be of service, in all areas of the
assistance.
local public employment office.
6. With the growing understanding acquired first-hand by as-
7. STAFF TRAINING PACKAGE PROGRAM
sisting in this demonstration program, local employment office
personnel have much more confidence in trying to convince
One more example of the interest of the public employment service
employers in the competitive labor market that it is to their
staff who have in the past been responsible for attempting to provide
advantage to try to use the impoverished elderly. Thus they open
leadership in improving services to the elderly, is the presently on-
the door for more employment in the community.
going program to develop a "staff training package" to be used in the
7. Growing out of experience with the Senior AIDES, training
Public Employment Service State and local offices. This is to train
programs have been developed with and for employers in some
those who will serve the elderly (chiefly designated older worker
communities, utilizing the impoverished elderly to fill jobs on part
specialists) to provide maximum service.
and full time for which applicants with needed "skills" are in short
This developmental project is being carried on by the Minnesota
supply.
Department of Manpower Services (formerly called the Minnesota
Employment Security Department) as the prime contractor under a
6. IGNORING SUCCESSFUL EXPERIENCE
contract with the U.S. Department of Labor. Parts of the project
have been subcontracted to the Minneapolis Rehabilitation Center
Another indication of the desire of the public employment service
and to the University of Minnesota. The work has been underway
in the U.S. Department of Labor to provide maximum effective
since 1969 and is to be completed by July 1, 1971.
service to the elderly is the experimental and demonstration program
There is every indication that this training package will be an
initiated by the national office in 1967 when the Special Assistant for
excellent tool-developed with imagination and realism to meet the
Older Workers was in a position to give leadership and guidance.
current social and economic situation in this country. The question
Eleven cities scattered about the country were selected for this pro-
arises-why the development of training material for use in a "cate-
gram. Funds were allocated to provide for setting up special units in
gorical" employment program if programing and funding on a "cate-
local public employment offices and to provide for additional staff
gorical" basis is to be eliminated in a socalled generalist approach to
to give specialized service on a full-time basis to older applicants
the employment needs of the population?
seeking employment.
The National Council of Senior Citizens suggests that failures on
In other words, the primary and sole responsibility of these units
the part of the local public employment services must in large part be
was to help older workers find suitable employment. This involved
attributed to the vacillation of the U.S. Department of Labor and the
training the staff to give service and intensified job counseling; to
Congress in maintaining adequate balance in funding and in supporting
work aggressively in community and employer relations to open up
realistic priorities over the years. The Council urges that all in author-
jobs, etc. In Chicago, for example, the National Office allocated 31
ity move to provide stability to the public employment service, which
additional positions for this program. The results were so good that,
is an integral part of the U.S. Department of Labor. The Council is
in 1968, additional jobs were provided; Chicago was given five. By
convinced that given stability and support, the public employment
the end of the year, the program had proved so effective that the local
service can and will provide effective assistance to the impoverished
offices in these 11 cities were told that the demonstration aspect was
elderly seeking employment.
being eliminated and the activity was to become a regular part of
It is the viewpoint of the National Council of Senior Citizens that
the local office operation.
use of local offices of the public employment service (Comprehensive
Now the question arises-does the administration and the depart-
Manpower Service, as it is now called) should be required as the primary
ment intend to discontinue a proven effective method of serving job
source for the recruitment of older people for community senior service
seekers by removing the concept of categorical programing? The
projects, and the sole source for screening and referral of applicants
National Council of Senior Citizens suggests that the letter from
for job openings in community senior service employment.
Secretary of Labor Hodgson to Senator Yarborough, dated July 7,
To ensure that needed assistance will be provided, a "categorical"
1970, advising that the administration opposes providing funding
approach is required, and the following recommendations, in connec-
and planning on a categorical concept is; (1) wasting the money
tion with State and local employment service operations, are in order:
spent in developing effective service; and, (2) putting the State and
1. That every State and local public employment service (or
local offices in the position of trying to be all things to all men and
ending up by providing ineffective service to the elderly whom the
Manpower Services) office contain an "older worker" unit headed
local offices should be serving.
by a qualified and well trained "older worker specialist," and
78
staffed with an adequate number of subordinate older worker
specialists, qualified and well trained-all of them dedicated to
assist in meeting the needs of all elderly persons needing assistance
in finding jobs, with special emphasis on the impoverished elderly;
and
2. That the Congress specifically earmark the minimum amount
5
of funds to be allocated to provide specialized employment service
(including not only recruitment, screening and referral, but also
counseling and job development);
SUGGESTIONS FOR IMPROVING REPORTING OF PRESENT
3. That the U.S. Department of Labor and its affiliated State
agencies; (a) provide an accounting of services rendered, with
COMMUNITY SENIOR SERVICE EMPLOYMENT PROGRAMS
recommendations for continuing improvement of these services
to the elderly; and, (b) that the Secretary of Labor report specifi-
In 1967, the Secretary of Labor designated a competent, qualified
cally on the manner, extent and continuing plans for services to
and committed person to be Special Assistant for Older Workers and
the elderly in his annual report to the President and the Congress.
gave him the responsibility and authority for developing plans and
programs for the improverished elderly. When the Special Assistant
was given the responsibility by the Assistant Secretary to implement
the objectives of S. 276 legislation establishing a community service
program for older persons, action followed.
The instructions implemented the commitment voiced earlier by
the Secretary of Labor in testimony before the Subcommittee on
Aging of the Senate Labor and Public Welfare Committee. The
instructions were to give this task the highest priority, setting aside
other priority activities until substantial progress was achieved.
The instructions included the following assignments:
1. Set up a joint committee of Labor; Department of Health,
Education, and Welfare; and Office of Economic Opportunity to
arrive at definitions and divisions of responsibility and alloca-
tions of funds.
2. Identify the amount of funds to be earmarked for the com-
munity senior service program, over and above funds expended
for such purposes this year. This additional sum is to be not less
than $9 million from all sources.
3. Identify the appropriate and feasible sources of such funds
(with the advice of legal counsel) from appropriations for the
Economic Opportunity Act, Older Americans Act, Manpower
Development and Training Act, and for the administration of
the Employment Service, including specifically the funds avail-
able for intensive older worker service.
to
4. Develop specific methods and organizational provisions by
which the Bureau of Work Programs, the U.S. Employment
Service, the Bureau of Apprenticeship and Training can promote,
establish and support community service programs for persons
of age 55 years-and-over, through national, State, local public
and nonprofitmaking sponsors.
5. Develop methods and directives which will increase the
numbers and proportions of trainees of age 45-and-over partici-
pating under the Manpower Development and Training Act.
6. Recommend the kind and frequency of data, to be incor-
Illaw
hoftileup
porated in reporting systems now in existence or being developed,
B
which will alert us to the need for further action to accomplish
the goals set for older workers, and to keep Congress, the Secre-
tary and others adequately informed on the status and effective-
ness of the program.
(79)
80
Under the guidance of the Special Assistant, the first four items
were effectuated. The actions that still needed to be taken at the time
of the change in the administration included the establishment of
standards, procedures, and forms for the review of projects and policy
interpretations that would be relevant to a demonstration project.
The Special Assistant had found that the Bureau of Work Programs'
standards, procedures and forms for review and approval of work
projects, as well as policy interpretations, were appropriate for an
ongoing program. But they were and are ill adapted to launching,
conducting and evaluating a demonstration project. To date, nothing
significant has occurred with reference to the items 5 and 6.
Unable to secure guidance or assistance from the constantly
changing Manpower Administration staff, each of the Demonstration
Project Directors was forced to develop his own reporting procedures
and evaluation plans and techniques. Having developed these, and
having reviewed and cleared them with the responsible Manpower
Administration personnel, the demonstrations proceeded and the
gathering of data began.
IRRELEVANT REPORT FORMS
However, after a comparatively short period of time, instructions
from the Manpower Administration required the Demonstration Proj-
ect Directors to submit reports using forms that had been designed
for use for the Neighborhood Youth Corps. Without a Special As-
sistant for Older Workers through whom to secure appropriate action,
demonstration project staff attempted to secure such action through
the regular Manpower Administration staff. Attention was called to
the fact that the data required on the NYC forms, to a large extent,
was not relevant, and that information vitally needed for evaluation
of the demonstrations would not be provided. After long periods of
discussion, the instructions were upheld with the advice that items
on the NYC forms be adapted for reporting to the Manpower Ad-
ministration, and that the demonstration project directors could re-
quire any additional reports they desired.
The end result, as far as the Senior AIDES project was concerned,
was the decision that the only data the local sponsors would be asked
to submit was that required by the Manpower Administration. To
require these people to prepare several different reports was a time
consuming activity which it was felt could not be asked of local staff
with already heavy workloads.
Had there been specially designated staff responsible for coordinating
USDOL activities for the elderly, undoubtedly a uniform reporting
system that would produce meaningful, relevant data related to the
several demonstration projects, would have resulted. Likewise, such
staff undoubtedly would have developed a system for evaluating the
several projects as they progressed.
Again, such staff would undoubtedly have helped resolve definitions
and criteria for use in demonstration, which required agreement be-
tween the USDOL and OEO. Instead, to this date, questions con-
cerning definitions and criteria are still pending-2 years or more after
the projects became operative.
(81)
Agring
WASHINGTON REPORT by Congressman Marvin L. Esch
VOL. V NO. 49
Second District of Michigan
December 15, 1971
FOR RELEASE BEGINNING WEEK OF DECEMBER 20
Three years ago Congress provided funds for several demonstration nutrition pro-
jects for the elderly, under Title 1V of the Older Americans Act. These nutrition
projects proved to be highly successful, not only in providing hot meals to senior
citizens who might otherwise go hungry, but also in facilitating the delivery of other
social services, in fostering social intergration, and in meeting the emotional needs
of the aged. Funding for this program, however, was on a temporary basis only.
However, because of their demonstrated effectiveness very early in the year, I intro-
duced a bill to put these programs on a permanent basis and pending action on my bill, I
urged that the House pass a continuing resolution to keep these projects in operation
until we were able to enact more permanent legislation.
Under this bill, S. 1163, states would set up their own programs in accordance
with certain guidelines. Among these, each nutrition program would provide at least
one hot meal per day for five or more days per week, sites for such nutrition programs
would be in as close proximity to the majority of elegible individuals' residences as
feasible, and methods of administration that assure the maximum number of eligible
individuals an opportunity to participate would be utilized. Beyond providing for a
nutrition program, each center would be required to provide a setting conducive to
expanding that program to include recreational activities, information, health and
welfare counseling and referral services.
Within these guidelines, each state would structure its program so as to fit local
circumstances. Because of their success I would hope that the state agencies respons-
ible would study the projects already in operation before implementing their own.
There have been a number of successful nutrition programs operating independently of
these demonstration projects. Monroe has had one such program, and I believe its
success also merits study by those who will be responsible for the structuring of new
initiatives.
With this legislation we are taking a significant step in meeting the needs of the
elderly. Not only are we providing our senior witizens with nourishing meals, but we
are going to the very heart of the social problems underlying inadequate diets among
older people. Testimony before my own Committee has underscored that simply raising
the income level of older Americans does not motivate the aged person who lives alone
to cook for himself; does not help the invalid to shop; fails to alleviate feelings of
loneliness, rejection, or apathy; does not help the aged person to understand the need
for a nutritionally adequate diet, or how to achieve it. S. 1163 is designed to meet
these basic needs.
Page two
As, John B. Martin, the Commissioner on Aging, has noted, "...a sense of
belonging and other psychological and social values accrue from eating with others."
The opportunities for increased socialization which occur as a result of this leg-
islation will be as important to the older participants as the nutrients they. would
receive.
S. 1163 then, is important legislation which will meet the real needs of the
elderly. It reaches out into the community to locate those most in need of the
program; it will build nutritional education into the project; and it provides for
a variety .of ancillary social services. Certainly a program which accomplishes
all this, and does so in a manner already proven effective, deserves to be put on
a permanent basis.
S. 1163 has been reported out of my Committee, and I have urged the House
for quick action on the measure.
(This has been printed on recycled paper.)
(Elderly
NEW INCOME BENEFITS FOR OLDER AMERICANS
A FACT SHEET
President Nixon's Social Security and Adult Assistance proposals (H. R. 1),
now before Congress, add significant new benefits to Social Security and
introduce improved income assistance provisions for those with low
incomes.
The legislation establishes two primary goals for retirement years.
First, the establishment of an income floor for poor older Americans,
and Second, the guarantee of inflation-proof Social Security benefits.
AN INCOME FLOOR FOR THE AGED
To achieve this first goal, H.R. 1 provides a new Federal assistance
program for the aged, blind, and disabled. When fully effective, this
program will provide assistance payments to about 5 million low income
older Americans. Payment levels under H. R. 1 will reach $150 per
month for an individual and $200 per month for a couple, approximating
the current non-poverty threshold level.
INFLATION-PROOF BENEFITS FOR ALL SOCIAL SECURITY BENEFI-
CIARIES
H.R. 1 will also greatly strengthen the Social Security program for other
older Americans. The President has urged establishing inflation-proof
benefits for all Social Security recipients now receiving monthly Social
Security benefits -- more than 17 million older Americans today and all
those who will receive benefits in the future. This assurance comes in
addition to a 5% across-the-board increase in Social Security, effective
in June 1972.
H. R. 1 will also increase basic benefits for older widows and liberalize
the retirement test, permitting older workers to earn more without the
present mandatory reduction of benefits. Under President Nixon's
proposal, older workers will always be assured of more in total income
as a result of engaging in active work.
2.
NEW FEDERAL INCOME SECURITY PROGRAM
The enactment of H. R. 1 creates a new Federal income security program,
offering the following benefits:
(1) Establishes a national benefit program, administered by the Social
Security Administration, for low-income aged, blind or disabled
people. (Thus, for those whose other retirement income is insuffi-
cient to support a decent level of living, the Federal government will
establish a guaranteed annual income -- below which no older American
will fall.)
(2) Provides a nationally uniform eligibility standard which will replace
54 different systems with widely varying eligibility and administrative
methods.
(3) Provides higher payments for individual older Americans in 31 states
and for couples in 26 states.
(4) Allows older Americans to qualify for assistance while retaining assets
that do not exceed $1, 500 in value. In counting assets, the home,
household goods and personal effects of reasonable value, and tools of
a trade will not be considered. In addition to other assets, the aged
American may have life insurance policies with a total face value that
does not exceed $1, 500.
(5) Pays an individual up to $130 a month in the first year the program
is in effect, up to $140 a month in the second year, and up to $150 a
month after two years.
(6) Pays a husband and wife up to $195 a month in the first year the program
is in effect, and up to $200 a month thereafter.
(7) Establishes eligi bility for assistance on the basis of an older person's
own need rather than the ability of his children to provide support for
him.
(8) Allows Federal payments to be supplemented by the states if the states
wish to maintain or exceed existing payment levels where they are now
higher than the new Federal level. At the option of the states, their
supplemental payments may also be administered by the Social Security
Administration.
3.
INFLATION-PROOF SOCIAL SECURITY
President Nixon's proposed improvements in the Social Security system will
benefit the more than 17 million people older Americans now receiving
Social Security retirement benefits, but will also aid all older people in
the future that is, the 94 million who are contributing to the system this
year. More than 90% of the current elderly are eligible, and more than
9 out of every 10 people reaching 65 this year will also be eligible.
(1) Improvement in Social Security Benefit Levels.
The general benefit increase (5%) provided by H. R.1, together with the
across-the-board increases enacted in 1969 and 1971, will mean that
during the Nixon Administration Social Security benefit levels will
have been improved for everyone by one-third. The 5% general
benefit increase in H. R. 1 alone will raise benefit payments by more
than $2 billion in the first full year.
(2) Protection against inflation.
H.R. 1 will provide that, in the absence of congressional action to
increase benefit levels, Social Security benefits will be automatically
increased if the cost of living rises by 3% or more.
Not only will benefit amounts be kept up to date under H. R: 1; but also
the amount of exempt earnings under the "retirement test". The maximum
amount of annual earnings on which contributions are paid, and which are
counted toward benefits, will automatically keep pace with future increases
in individual earning levels.
(3) Changes the retirement test to allow older citizens to earn more after
retirement without losing benefits.
Under present law, a recipient may earn up to $1, 680 in a year without
losing any benefits. There is a $1 reduction in the benefits for each $2
earned between $1, 680 and $2, 880. Finally, there is a dollar-for-dollar
reduction in benefits for any earnings above $2, 880. This confiscatory
reduction means that it is possible for a beneficiary to have less total
income (that is, Social Security benefits plus earnings after taxes if he
had, in fact, earned less.
Under H. R. 1, amount of exempt earnings would be increased to $2, 000
and would automatically be adjusted in the future as general earnings
level rise. Also, only $1 in benefits would be withheld for each $2 a
4.
beneficiary earns above the exempt earnings, so that there would be
no point at which $1 in benefits would be withheld for each $1 earned.
Thus, recipients would be assured that the more they worked and
earned, the more spendable income they would have.
In the first full year, 700, 000 people will receive increased benefits
under this provision, and 390, 000 people will get some benefits for
the first time.
Additional benefits in the amount of $484 million will be paid in the
first full year.
(4) Higher benefits for widows.
Currently, a widow who starts receiving benefits (at age 62 or older)
receives only 82 1/2% of the benefit that would have been payable to her
husband had he lived to retire.
The President has recommended an increase to full benefits for widows.
Under H. R. 1, a widow who starts receiving benefits at age 65 or older
will receive the same benefit that would have been payable to the husband
as his retirement benefit.
Approximately 3 1/2 million widows will receive increased benefits
on the effective date, and $764 million in additional benefits will be
paid in the first full year. The average monthly benefit payable to aged
widows receiving benefits on June 30, 1972, will be $114 under present
law. If H.R. 1 is enacted, that amount will be $133 an increase of
17%.
(5) More liberal benefit computation for men making it the same as
the benefit computation now used for women.
Currently, benefits for men are based on earnings averaged over more
years than are used for women: up to the year attaining age 62 for
women, but to theyear of attaining age 65 for men. The effect of this
treatment is to decrease average earnings for most beneficiaries, thus
decreasing the benefits received.
The President proposed, and H.R. 1 includes, a provision for the
computation of men's benefits henceforth on the same basis as women's.
This is fairer and more equitable than existing law.
5.
-- The provision will, when fully effective, allow men to drop out of the
benefit computation an additional three years of low earnings.
-- Most men who retire in the future will receive higher benefits as a
result of this provision. This is particularly important for those men
who retire before age 65 since the years of no earnings between ages
62 and 65 will not lower their average monthly earnings on which their
benefits are based as they do under present law.
IN CONCLUSION
President Nixon's Social Security and welfare reform legislation will
favorably affect older Americans in many important ways.
-- It will provide a uniform, Federally-administrered benefits program
to help those now living in poverty.
- It will make Social Security benefits inflation-pro of and provide a
number of other important Social Security improvements for
virtually every older American.
N/L
WASHINGTON REPORT by Congressmant Marvin L. Esch
VOL. V, No.
Second District, Michigan
February 3, 1971
FOR RELEASE BEGINNING WEEK OF FEBRUARY 8
Any way you look at it this Congress will soon do what the last one should have --
pass an increase in social security benefits.
Some members of Congress, especially those who alt on the Senate Finance Committee,
should have a guilt complex over what happened last year to social security. It was in
the hectic days of the last session that the Senate Finance Committee conceived the
notion to tack onto the social security measure some of the session's most hotly contested
items. One of them was the horrendous trade bill which, if enacted, would have touched
off a bitter dispute between America and her trading partners. Fortunately for this
country's foreign relations that move failed; unfortunately for the elderly, however, the
tactics of a few Senators resulted in unnecessary confusion and delays with no social
security hike forthcoming.
Had the Senate followed the lead of the House which passed a bill nearly a year
ago, those living on social security payments would already be getting a fatter check.
Enough history--what about the future?
I have written the Chairman of the House Ways and Means Committee, where action
will originate, urging immediate hearings. The Chairman has sent word that he is for
early hearings on a new bill. This is an encouraging sign.
I might add I have some very strong feelings on what the content of that legisla-
tion should be.
First, automatic cost of living increases. They are necessary and what happened
in the Senate is a clear illustration of why they should be written into the law. It is
sheer nonsense that our senior citizens should be at the mercy of political demagogues.
Second, when we raise the benefits they ought to be retroactive to January Ist,
Third, a boost of ten percent is warranted, particularly with the upward trend
in the cost of living.
Fourth, I favor an end to the earnings limitation. This would in my opinion be
one of the most helpful steps that Congress could take to really be of assistance, so that
those who wanted to keep working would not be penalized.
Aside from a hike in social security payments, Congress could move expeditiously
in this session on other matters that effect our senior citizens. We of course will be
More
PAGE 2
considering health legislation, and here the aged will benefit. In addition, Congress,
which has up to now failed to launch a comprehensive attack on the problems of the
elderly,
has another chance to get a program moving. I have mentioned the need for
national health insurance. We must solve the difficulties that surround medicare, do a
better job at making certain our elderly are able to assume a meaningful role in society,
and raise the many who are presently below the poverty level.
A Congress that passes progressive legislation of this type will go down in
history as one that has taken constructive steps to solve the great difficulties this
segment of our society faces. Our elderly have done their part--they have made America
a great country. Now we must do ours, and see to it that we assure them a life of dignity
and purpose.
FOR IMMEDIATE RELEASE
Agerig
JANUARY 29, 1971
WHITE HOUSE CONFERENCE ON AGING
N/ltr
Office of Public Information
and Public Affairs
(202) 755-7824
Representatives of national voluntary organizations concerned with the
problems of older people begin meetings next week to draft recommenda-
tions for the 1971 White House Conference on Aging.
Nearly 500 men and women representing 257 organizations will tell the
Conference what they think should be done about improving conditions for
the elderly and about developing a national policy toward older Americans.
They will be organized in 20 task forces and meet in four groups. The
first groups, of five task forces each, will assemble in Washington for one-
day preliminary sessions Tuesday and Wednesday (February 2 and 3). A
third group meets in Washington February 9. The fourth meets in Chicago
February 11.
(NOTE: The Washington meetings will be held at Hospitality House in
Arlington, Va. The Chicago meeting will be held at Arlington Park
Towers near O'Hare International Airport.)
Task forces in each group will organize themselves, selecting their own
chairmen. They will return for two-day meetings to draft policy recommen-
dations in March.
They will study the entire range of nine "areas of needs" for older people
set up by the White House Conference: income, health and mental health,
nutrition, housing and environment, transportation, education, employment
and retirement, retirement roles and activities, and spiritual well-being.
They will base their deliberations on background "issues" papers prepared
by the Technical Committees of the Conference.
Members of the task forces reflect the particular interests of the individ-
ual organizations they represent. Health problems of the elderly is a major
concern. Four separate task forces will study this subject.
OVER
- 2 -
Recommendations of the task forces, plus the recommendations to com e
from community and State White House conferences and from regional hear-
ings on aging problems this spring will provide the major input for delibera
tions by the national Conference. It is scheduled to meet in Washington the
week of November 28.
"The importance of national voluntary organizations looking at their own
policy-making functions cannot be overstated, 11 according to John B. Martin,
Special Assistant to the President for the Aging and Director of the Confer-
ence. "Unless policies have broad support they cannot be implemented by
action. The national organizations' own policies require this same kind of
support from their constituencies. They know that this means laying a
proper groundwork for the presentation of their ideas to the national Con-
ference. This is why the task force meetings are so important."
Mr. Martin will brief each of the task force groups on Conference objec-
tives. Others who will appear before different groups include General
Alfred M. Gruenther and Thomas G. Walters of Washington and Hess T.
Sears of Des Moines, Iowa, members of the Committee on National Orga-
nizations of the 90-member Conference Planning Board. General Gruenther
is Chairman of the Committee, Mr. Sears Vice-Chairman and Mr. Walters
a member-at-large. Mr. Sears also is Chairman of the Conference Tech-
nical Committee on Spiritual Well-Being.
The task force meetings were organized by Mrs. Dorothy MacLeod,
Associate Coordinator for National Organizations of the Conference.
The schedule of meetings follows:
Washington, D. C., February 2 and March 2 and 3: Task forces on Income,
Health and Mental Health, Transportation, Education, and Employment and
Retirement.
Washington, D. C., February 3 and March 9 and 10: Task forces on Income,
Health and Mental Health, Housing and Environment, Employment and Retire-
ment, and Spiritual Well-Being.
Washington, D. C., February 9 and March 16 and 17: Task forces on Health
and Mental Health, Nutrition, Housing and Environment, and Retirement
Roles and Activities.
Chicago, Ill., February 11 and March 23 and 24: Task forces on Health and
Mental Health, Nutrition, Housing and Environment, Education, Employment
and Retirement, and Spiritual Well-Being.
***
GSA DC 71.8889
aguig
#ofbill? HR. 9355
Congressman
GUY VANDER JAGT
MICHIGAN NINTH DISTRICT
1211 LONGWORTH HOUSE OFFICE BUILDING
WASHINGTON, D.C.
20515
CONTACT: BUD NAGELVOORT (202) 225-3511
VANDER JAGT'S VIEWS
TRAVEL FARE REDUCTIONS
FOR IMMEDIATE RELEASE
FOR SENIOR CITIZENS
JUNE 28, 1971
This week I introduced House legislation enabling the Nation's airlines,
railroads and buses to provide reduced fares for citizens over sixty-five years of
age. Michigan Senator Robert P. Griffin has been seeking Senate enactment of this
proposal.
It seems to me that this action is entirely justified at this time. We are
confronted with steadily rising costs of living which, while posing hardships for
all Americans, bring special distress to our older citizens, who are trying to
make ends meet on fixed, often small incomes.
Travel opportunities can be particularly enriching and meaningful to retired
persons. In earlier times, families and friends tended to live close together for
entire lifetimes, or at least for extended periods. Older citizens gained much
happiness from close associations with relatives and longtime acquaintances. But
the mobility of our society in recent decades has scattered people across the
country, reducing older persons' opportunities to visit those whom they know and
love. Statistics indicate that last year only one percent of Americans over
sixty-five years of age traveled across a state line. Clearly, travel costs were
a major barrier to those persons.
Yet, we find that many of our airline flights are operating with small loads,
losing revenue that they could obtain if more of our older people were traveling.
Our trains and buses could also carry more people, both within metropolitan areas
and between our cities and towns. I have written officials of the National
Railroad Passenger Corporation (Amtrak), the new public corporation running almost
all of the inter-city passenger trains, urging them to develop similar rate reduc-
tions. Rail travel could open up many opportunities for senior citizens to visit
people and interesting places in our country. In turn, their use of the trains
could help inspire further train travel, and thus encourage a revival of surface
passenger transportation. Amtrak has the authority to establish its fares, and
plans a thorough study to determine whether selective reductions can be made.
There is ample precedent for fare discounts for specific groups of our
population. Blind and handicapped persons and their attendants traditionally, and
more recently students and servicemen, have received these benefits. Also, some
urban transit and bus lines now provide fare reductions.
The legislation which we are proposing, coupled with Amtrak's existing rate
authority, would permit the passenger transportation industry to determine the
amount of the fare reductions. A Senate committee is already giving consideration
to the aviation aspects of this proposal, and I hope that Congress will soon enact
the measure. I would urge the firms to then provide substantial cuts, thereby
responding effectively to the travel needs of America's senior citizens.
# # #
FACT SHEET - No. 4
WHITE HOUSE CONFERENCE ON AGING
Office of Public Information
and Public Affairs
(202) 755-7824
PROCLAMATION BY THE PRESIDENT OF THE UNITED STATES
SENIOR CITIZENS MONTH, 1971
APRIL 20, 1971
From its beginnings, the American Nation has been dedicated to the constant
pursuit of better tomorrows. Yet, for many of our 20 million older Americans
the "tomorrows" that arrive with their later years have not been better. Rather
than days of reward, happiness, and opportunity, they have too often been days
of disappointment, loneliness, and anxiety. It is imperative that this situation
be changed.
Some of the problems of older Americans have their roots in economic causes.
For example, the incidence of poverty is more than twice as great among older
Americans as among those under 65. This is especially tragic because many of
these people did not become poor until they reached their later years. Moreover,
the economic gap between the age groups has been accompanied in recent years
by a growing sense of social and psychological separation, so that too often our
older citizens are regarded as an unwanted-generation.
The generation of Americans over 65 have lived through a particularly
challenging time in world history. The fact that our country has come through
the first two-thirds of the twentieth century as a strong and growing Nation is
the direct result of their devotion and their resourcefulness. We owe them a
great deal -- not only for what they have done in the past but also for what they
are continuing to do today. Perhaps the greatest error which younger Ameri-
cans make in dealing with the elderly is to underestimate the energy and skill
which they can still contribute to their country.
OVER
- 2 -
During the last year, several hundred thousand older people wrote to
officials of the Federal Government and told us in their own words -- some
sad, some hopeful - about what they need and what they desire. We learned
once again that what they seek most of all is a continuing role in shaping the
destiny of their society. We must find new ways for helping them play such a
role -- an undertaking which will require a basic change in the attitudes of
many Americans who are not yet elderly.
As a part of our effort to achieve such changes, our Nation each year
observes the month of May as Senior Citizens Month. This is a time when
we make a special effort to thank our older citizens for all they have contri-
buted to America's progress. It is also a time for asking with special force
whether they are now sharing in that progress as fully as they deserve and
desire and for renewing our efforts to help them live proud and fulfilling lives.
Senior Citizens Month, 1971, will be a particularly important time for such
endeavors, for this is the year of the White House Conference on Aging. The
Governor of every State has issued a call for a State Conference on Aging to
be held during May. From these State conferences will come policy recom-
mendations which will be submitted to the White House Conference in Wash-
ington next November.
I know that the work of these State conferences during Senior Citizens
Month like the work of the White House Conference next autumn -- will
be undertaken with a high sense of discipline, commitment, and imagination.
The Nation owes no less to those who have given so much to its development.
NOW, THEREFORE, I, RICHARD NIXON, President of the United States
of America, do hereby designate May, 1971, as Senior Citizens Month. The
theme for this month will be Toward a National Policy on Aging.
I am deeply grateful to the Governors for their concern and participation in
this observance. I urge officials of government at all levels national, State,
and local -- and of voluntary organizations and private groups to give special
attention to the problems of older Americans during this period.
I also call upon individual citizens of all ages to take full advantage of this
opportunity to share indesigning a better future -- for those who are now
numbered among our older citizens and for all who will be among that number
someday.
IN WITNESS WHEREOF, I have hereunto set my hand this twentieth day of
April, in the year of our Lord nineteen hundred seventy-one, and of the
Independence of the United States of America the one hundred ninety-fifth.
***
GSA DC 71.12446
A MESSAGE aging
FROM THE PRESIDENT
W
the House Subcommittee on Retire-
E HAVE SET ASIDE the week
OUR COVER
ment, Insurance and Health Benefits.
of June 21, 1971 for a meeting of
replacing Congressman Dominick V.
our NARFE Executive Committee
Daniels who had to relinquish that
and a legislative rally is being called
chairmanship in order to continue as
for June 22 and 23. We strongly urge
Chairman of a Subcommittee on Edu-
that each Congressional District in the
cation and Labor. This is the Sub-
United States be represented by one
committee which handles the majority
or more members of NARFE at this
our legislation and we are delighted
RETIREMENT LIFE, MARCH 1971
5
Clarence J. aging
Congressman
HOUSE OF REPRESENTATIVES
PH: WASH.. D.C. 202-225-4324
NEWS
WASHINGTON. D.C. 20515
springfield 513-325-0474
"REPORT FROM WASHINGTON"
For Release Tuesday, May 25, 1971
May has been observed across the nation as "Senior Citizen
Month." Hopefully, this has served as a period for all Americans to
pay special attention to the particular problems faced by the country's
20 million aged citizens. Consideration should be given to
activities and programs that can help this large segment of our
citizenry be a more viable part of our total society.
In many parts of our country, Senior Citizen Month has been
marked by state and local conferences on the problems of the aged as
part of the groundwork for the White House Conference on Aging,
scheduled November 29 thru December 3 in Washington. (The last White
House Conference on Aging was called by President Eisenhower in
January, 1961.)
In addition to the current state and local conferences, 14
technical committees have been appointed from among the White House
Conference delegates. Each committee is responsible for studies
of aging problems such as income, health, transportation, nutrition,
etc. These technical committees have been meeting since late last
year to coordinate directions of study and to put preliminary
reports together. Members of the committees are also attending the
state and local conferences in order to benefit from the discussions at
those levels. Each of these groups will suggest ideas for final
resolutions to be considered by the White House Conference. These
suggestions will lay the new groundwork for America's priorities and
programs for the aged during the 1970s.
But America shouldn't wait for the proposals of this year's
White House Conference to think of how it might expand the role of
senior citizens in a society which has more and more during the past
years segmented them into a single rigid category of "old people."
The diversity of this group of 20 million Americans is the same as for
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10
(NOT PRINTED AT GOVERNMENT EXPENSE)
page 2
any other group in society, whether they be persons between 40
and 60 or 15 and 25. And their needs and problems, and their
abilities to contribute to the mainstream of American life, are
still just as diverse.
There are certainly a number of descriptive categories
peculiar to older Americans -- reduced incomes, increasing health
problems, restricted mobility. Some of these can be dealt with as
national programs through approaches such as Medicare. And the
federal government can help and does help in a number of other
appropriate areas, such as funding of Foster Grandparents
Programs, programs for special nutritianal aid and grants for
local senior citizen activity centers tailored to particular
localities and operated at the local levels. I have no doubt that
these federal programs will continue to grow, providing more
funds and offering help in more areas as the senior population
grows. But more dollars, and even more programs, can do only
part of the job of bringing the elderly back into the mainstream.
The rest of the job has got to be done by people of middle
age and younger who are willing to give up some of their own
time and make an effort to put out the "welcome" mat for the
upper end of the generation gap. That can't be done from
Washington. It's got to be initiated down the block in each
individual community.
-30-
aging
FOR IMMEDIATE RELEASE:
FROM: State of Michigan
Commission on Aging
Suite 700, Commerce Center Bldg.
300 S. Capitol
Lansing, Michigan 48926
Mary C. Lutz
Public Information Specialist
Phone: 517-373-0590
Commission Grants Funds
For Elderly Programs
The Michigan Commission on Aging granted $206,365 in funds to elderly
programs throughout the State at its June Commission meeting, Lloyd Johnson,
vice-chairman of the Commission announced.
The Kent County Comprehensive Senior Citizens Service Project in Grand
Rapids received the largest grant -- $52,464 -- to continue coordinating area
programs and services for Grand Rapids' elderly.
The project, which was this year's winner of the Gerald K. Wyman Award
for the most outstanding program for elderly people in Michigan, operates
three multi-service centers and is planning a fourth.
The Commission also approved a grant to the Geriatric Council of Greater
Muskegon, Inc. to develop a multi-service center for Muskegon residents who
are 55 or over, and to coordinate existing programs for Muskegon area older
people. They will receive $22,865 in funds.
Western Michigan University in Kalamazoo will receive two grants to train
community personnel in the problems of the elderly. The $8,415 grant will be
used to train firemen, policemen, and telephone operators in the special needs
of the elderly in emergency situations and make them aware of existing community
resources for the elderly.
MORE
Grants
Add 1
The other $1,246 grant will be used to present a series of seminars
to community school personnel on how they can serve as a resource for the
elderly.
The Visiting Nurse Service of Calhoun County, Inc. will develop a home-
delivered meal program for ill or disabled older people in the Battle Creek
area through its $20,361 grant. Leila Post Montgomery Hospital will prepare
and package the meals for delivery.
The Commission also approved a $34,189 third year grant continuation to
the Community Services to the Aged Mentally Ill project in Detroit.
Through the program, former mental patients living in selected boarding
and group homes in Macomb, Oakland and Wayne Counties can receive counseling
and participate in multi-service center activities.
The program also provides training programs for sponsors and employees
of these homes so they can better meet the needs of their residents.
The Saginaw County Council on Aging will have a multi-purpose center in
downtown Saginaw for all of the County's older residents through its $15,573
grant. It will also coordinate existing programs operating in the area and
encourage other organizations to develop elderly programs.
The Upper Peninsula Commission for Area Progress will receive $14,871
to plan, coordinate and develop aging activities throughout the Upper Peninsula.
The project will also help inform older people about existing services and
encourage them to take a more active role in encouraging programs for the elderly.
As a result of the need expressed at the Community Forum in preparation
for the White House Conference on Aging, older people in Manistee County will
have a multi-service center through a $12,575 grant to the Manistee County
Council on Aging.
MORE
Grants
Add 2
The Commission also funded five other projects at its June meeting.
They include:
-- a $1,612 grant to the Cass County Council on Aging to define the
needs of the elderly and develop program recommendations to meet the
needs,
- $6,050 for a multi-service center in Grayling,
--$6,303 to the Baragaland Senior Citizens Center in L'Anse,
-- $6,742 to the Commission on Aging, City of Mt. Pleasant, to coordinate
elderly programs in Isabella County and to develop an information and
referral and recreational programs and,
-- $3,099 to the Norway Senior Citizens Center.
The Commission funds projects under Title III of the Older Americans
Act and from the State of Michigan. Under Commission funding, the amount of
funding decreases each year until the local community assumes complete
support for project continuation -- usually at the end of the third year
of funding.
MCA/MCL
Series 307
6/29/71
FOR YOUR INFORMATION AND USE AS DESIRED
DECEMBER 17, 1970
WHITE HOUSE CONFERENCE ON AGING
Office of Public Information
and Public Affairs
(202) 755-7824
STATEMENT BY JOHN B. MARTIN
Special Assistant to the President for the Aging and
Director of the 1971 White House Conference on Aging
(Delivered to the Technical Committee on Education, one of 14
technical committees of the Conference, at its first meeting in
Washington December 17, 1970)
I am happy to have this opportunity to meet with you as members of the
Technical Committee on Education. Education is viewed by the American public
as a main artery to progress and a better life for all. We want pre-school edu-
cation for the very young. We want post-graduate courses and night school
classes to keep our working age population up-to-date on the knowledge and
skills of their professions and trades. But, strangely, education for the elderly
or even education to prepare people to become elderly has a rather low priority.
You know and I know that this should not be true. With modern health advances,
an extremely high proportion of our population is going to live to a ripe old age of
80, 90 or 100; is going to spend 10, 20 or 30 years in retirement; is going to, in
fact does now, comprise a manpower group of many millions whose ability to
use their retirement years fruitfully, for themselves and for society, can be
immeasurably improved by education.
Nevertheless, convincing enough people to support the investment of time,
money and personnel in education for aging and of the aging will not be easy. In
considering what issues need to be resolved and what action programs should be
developed, I hope you will give some thought to how we can get the public to
understand the need for education beyond the middle years.
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There is considerable evidence to indicate that even the elderly themselves
when they were 61. At 50, these people showed a slight gain over their perform-
put a low priority on their educational needs. Granted that we do not have many
ance as college students and, at 61, performed the tests as well as they did at 50.
programs for older people and that those we do have could be improved, the
fact remains that the very people who could benefit most from educational
Another deterrent to the use of educational resources is the lack of easy
activities show the least interest in doing so. By and large, education for the
accessibility. With the development of more and more community schools and
aging has been reaching the middle and upper income class groups -- the
colleges, the expansion of adult education programs in the public schools, the
people who already possess sufficient resources to assure a relatively
introduction of educational programs for the elderly in churches, synagogues,
successful retirement.
senior centers and other community facilities, and the use of television, mobile
learning laboratories and bookmobiles, there is no real reason why educational
One reason for this, of course, is that the low-income elderly, and this
opportunities should be denied even the homebound.
means the great majority of older people, have so many problems related to
sheer survival income, health, housing that the thought of enriching
Basically our problem of education for the elderly seems to me to be that we
their lives through education does not occur to them. Yet educational pro-
haven't really tried hard enough to reach them. We haven't tried hard enough
grams could reach these people in terms of the very problem that concerns
to offer readily accessible programs with content that they will find stimulating
them.
and relevant.
For example, in our society the ability to read, write and figure is virtually
When it comes to education for retirement, however, our problems are
a must for any age group. Without this ability a person of any age is handi-
different. Here, too, there is the problem of not having enough programs or
capped even in the most rudimentary routines of living, let alone in the capacity
enough good programs, though perhaps the biggest obstacle to expansion and
to vote intelligently and to participate in other ways as a member of our society.
improvement is the lack of demand. The person who is middle-aged or younger
Surveys have indicated that some 20 percent of the people age 65 and older in
has a tremendous opportunity to make his retirement a highly satisfactory
the United States are functionally illiterate. Two-thirds of the elderly have
time of life if he begins to plan for it. However, most people in the younger
had no schooling beyond the eighth grade. The latter group can sign their
age groups seem to go along with the assumption that they will never grow old.
Social Security checks, read the newspaper headlines and tally up their grocery
Only when retirement is virtually upon them do they give it any thought and
bills. But is this minimal education, received in the early 1900's, really
many do not do so even then. This is one of the problems I am sure you will be
adequate for coping with contemporary problems and requirements?
discussing along with what facilities and content are needed for effective pre-
retirement education.
Basic education, designed so that it is attractive to the older person, is only
one of many programs that would help those elderly whose difficulties could be
In the background paper on education that has been prepared for the White
alleviated by education. Instruction in money management and in ways of
House Conference as well as in the reports of other conferences, commis-
increasing income are other educational needs. So is instruction in hygienic
sions and seminars you will find many facts, recommendations and proposals
living nutritious diets, proper exercise and other health protection measures.
that will aid you in your work. Some of the issues, in addition to those I have
Perhaps we have given too little attention to these fundamentals in our consi-
mentioned, that I would like to highlight for your consideration are these:
deration of educational programs for older people. We also need to step up
broader educational activities through programs that may be less applicable to
What should be the goals of education for aging: To prepare older people
immediate and basic needs but do give the elderly a chance to use their talents
to adjust to an inactive life? To enable them to continue earlier roles at
in ways of interest to them and of benefit to the community.
a reduced price? To help them develop new roles and a new way of living?
Another reason why older people, more than any other age group, do not
Should education for aging be concerned primarily with helping a people
take advantage of educational opportunities is the widespread but erroneous
cope with their individual problems? Or should it also be designed to
belief that the aging process impairs one's learning ability. Various research
increase their ability to take part in social action projects, in particular
projects have demonstrated that normal adults can learn at any age. In one
those related to the well-being of older people?
study, for example, students who had been tested when they were college
freshmen were given the same test when they were 50 years old and again
Since resources are limited, should priority be given to expanding existing
programs or to research and demonstration designed to produce new or
improved programs?
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OVER
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Should priority, in terms of service, be given to providing more opportunities
for those who are ready to and want to use them? Or should it be given to
those who do not now recognize what educational programs could do for them?
To what extent should older people themselves be involved in the development
of policies and procedures and the administration of educational programs?
Can we and do we want to use educational programs as a means of creating
what might be called a subculture of the retired, in which the major values
are cooperation, service and enjoyment of living in contrast to the values of
competition, conspicuous achievement, production and consumption that are
predominent in the working-age population?
Many people who take part in the community and State White House conferences --
and in the national Conference itself- will be relying on your work to help them set
goals and mobilize to achieve them. You are qualified to serve them and I am
confident that you will do so.
***
GSA DC 71.7483
FOR YOUR INFORMATION AND USE AS DESIRED
JANUARY 7, 1971
WHITE HOUSE CONFERENCE ON AGING
Office of Public Information
and Public Affairs
(202) 755-7824
STATEMENT BY JOHN B. MARTIN
Special Assistant to the President for the Aging and
Director of the 1971 White House Conference on Aging
(Delivered to the Technical Committee on Facilities, Programs
and Services, one of 14 technical committees of the Conference,
at its first meeting in Washington January 7, 1971)
I am happy to meet with you today to express my appreciation to you for agreeing
to serve as members of the Technical Committee on Facilities, Programs and
Services of the 1971 White House Conference on Aging.
Your assignment is a difficult one. All of us who have policy and program
responsibilities in the field of aging will look forward with keen interest to the
outcome of your work.
Your task is to formulate the basic issues that relate to virtually all the facilities
programs and services needed by the elderly. You are a Committee whose work
cuts across the subject fields of the Conference. The various technical commitees
on the needs areas of older people will deal with many of these issues as they con-
cern the fields that they are studying -- income, health, housing and others. It
remains for you, however, to determine the key issues that need to be resolved
during the discussions at the community and State White House conferences and at
the national Conference itself. You must establish basic principles and policies
that the programs in all the specialized areas can be guided by.
How wisely you select these issues, how clearly you define them, and how
accurately you can point up the consequences of alternative decisions that may be
made in relation to them, will have a profound effect on how well this nation meets
the needs of its older population.
For example, one issue I hope you will consider is that of subsidies. We know
that the present income S of a large proportion of our older people are too low to
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2
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support a decent level of living. Various types of subsidies have been devised to
Can we resolve these issues in ways that assure older people a true
help make up the deficiencies. The food stamp program, public and low-cost
freedom of choice? This is one of the major objectives of the White House
housing programs, Medicare and Medicaid illustrate the Federal Government's
Conference. Can we resolve the issues in ways that recognize the unmet
efforts to make it possible for older people to have specific kinds of goods and
needs of other groups and also give adequate emphasis to the needs of the
services that they could not otherwise afford. Examples could also be cited of
elderly?
subsidies by State and local governments, by religious groups, and by private
foundations and organizations.
With the growth of research and demonstration grant programs in Government
more and more of the experimental work of voluntary agencies is being supported
No one doubts that these subsidized programs have been of great benefit.to many
with tax funds.
older people. But they do give rise to the question of how extensively we want to
use this subsidized approach in meeting the needs of the elderly. It was considered
Does this mean that we believe the vigor of voluntary activity now requires
a major advance, back in the 1930's, when the Social Security Act established the
tax subsidy? If so, should such subsidies be offered solely for the purpose
principle of meeting needs in cash rather than in kind.
of insuring a continuance of the pioneering functions of privately-administered
organizations? Or should tax subsidies be on a scale sufficient to convert
Therefore, is the subsidy approach, which in effect provides assistance
the private organization into a mass delivery system? Does reliance on
in kind, regressive? Will efforts to subsidize more programs more
public programs for the mass delivery of services retard or limit the
generously make it harder to reach the goal of adequate incomes for the
expansion of needed services? To what extent does tax support affect the
elderly? On the other hand, even if this is so, is it perhaps the most
independence of the voluntary agency and its willingness to involve itself
feasible and realistic way of raising the levels of living of the elderly
in difficult and controversial areas?
today? If we hold out for higher incomes, are we sacrificing short-range
gains for long-range goals? Or, on the other hand, are the material
There can be little doubt, in my judgment, that older people need a spectrum
advantages that more subsidies might bring worth the loss of dignity and
of services. Nor do I have any doubt that Government and voluntary and private
independence that might result?
agencies must combine their resources to provide them. There is, however, one
area of service that is of such special relevance to older people that I want to
I don't know the answers to hard questions like these. Probably you don't either.
recommend it for your particular consideration. This is the area of protective
But I believe it is better to come to some decisions about them than to ignore them.
services.
To agree upon a concerted approach - the subsidy route, the income route, or
some well-considered combination of the two -- would help to prevent well-inten-
The Legal Aid Project of the Council of Senior Citizens, the work of the Ameri-
tioned persons from working at cross purposes. When this happens, the result
can Bar Association, Project Find of the National Council on Aging, and the legal
and this has been the result to date is that we have neither adequate subsidies
aid provided through the Office of Economic Opportunity have all documented the
nor adequate incomes.
common circumstances in which older people require protection.
The integration-segregation issue is another one that cuts across the many
Lonely and unprotected, the elderly are the easy targets of unscrupulous door-to-
subject fields of the Conference. The elderly are certainly not the only ones who
door salesmen. Often in ill health, they are lured into spending money they cannot
need better health services, better housing, better transportation and many other
afford by advertisements of nostrums and appliances supposed to restore health and
goods and services.
vigor. Many who are in poverty may find themselves at the mercy of landlords who
refuse to provide even minimum maintenance and cannot afford to hire legal aid to
If we push for specialized services for the elderly, do we weaken efforts
protect themselves.
to improve programs that benefit all age groups? At the same time, can
we be sure that, if the emphasis is on age-integrated programs, that
There also are those who, because of weakening mental and physical powers,
older people will get their fair share of the benefits?
have need for legal services that will protect their civil rights and properties.
Those who become so senile that they are a danger to themselves and perhaps to
There is also the question of whether the realities of generation gaps make some
others, and are thus subjects for commitment to mental institutions, are a special
age segregation preferable and perhaps even more wholesome to the elderly them-
group in point.
selves.
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OVER
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To assist the Technical Committee on Facilities, Programs and Services in
dealing with the development of the broad issues that can lead to uniform protective
measures for all older people in need of them, we have asked for help from two
groups: the President's Consumers Advisory Committee and the Committee on
Legal Problems of the Aging of the Family Law Section of the American Bar
Association.
Representatives of both groups are meeting here today as consultant subcom-
mittees to the Technical Committee. Their advice and assistance will insure that
the issues that will be developed will reflect the experience and perception of
concerned and informed leaders in the area of legal services and consumer
services.
It is in tough, knotty areas like these that you will be working. One of the most
disturbing effects of rapid social change is that some of the basic principles that
remain sound fail to be followed because we have not given due consideration to
changes in practice that need to be made in order to apply them to modern con-
ditions.
Both the elderly and those of us who are concerned with programs in aging need
to face these facts so that we can map our future courses on the basis of present
realities, not hazy assumptions. We very much need your help and I am confident
that you will provide it in good measure.
* * *
GSA DC 71-8089
FOR YOUR INFORMATION AND USE AS DESIRED
JANUARY 7, 1971
WHITE HOUSE CONFERENCE ON AGING
Office of Public Information
and Public Affairs
(202) 755-7824
STATEMENT BY JOHN B. MARTIN
Special Assistant to the President for the Aging and
Director of the 1971 White House Conference on Aging
(Delivered to the Technical Committee on Nutrition, one of 14
technical committees of the Conference, at its first meeting
in Washington January 7, 1971)
I especially appreciate the opportunity to talk for a few minutes with you who
are serving on the Technical Committee on Nutrition. As you know, I also serve
as the U. S. Commissioner on Aging. And many of the projects that are being
supported by funds from the Administration on Aging concern the nutritional
problems of the elderly.
The importance of diet, not only in terms of physical health but also in
psychological and social well-being, is now so well recognized that it is difficult
to believe that the science of nutrition is a Twentieth Century development. It
may appear to some that people have always known that different foods meet dif-
ferent bodily needs. Yet in reality it was the authorization of nutritional investi-
gations by Congress in 1894 that began the studies that have resulted in our present
ideas about diet.
It is remarkable, in view of the usual time lag between the acquisition and the
application of knowledge, that so many people know so much about the kinds of
food they should eat. This makes me optimistic about overcoming the very
considerable and general lack of knowledge that still persists.
People's eating habits tend to be formed in childhood. The childhood of the
present generation of older people was also the childhood of the science of nutrition
It is not surprising, therefore, that the elderly often fail to take full advantage of
nutritional knowledge.
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All too often they are aware that proper diet can do much to prolong their health
We are hopeful that some of the experimental projects that the Administration
and vigor but are vague about what constitutes a proper diet. Thus they are prob-
on Aging is currently supporting will shed some light on the psychological factors
ably disproportionately represented among the estimated 10 million people who
that affect nutrition as well as on the more pragmatic problems of organizing,
spend millions of dollars each year on dietary products they do not need and from
administering and financing various types of food services. More exploration in
which they do not benefit. Various studies indicate that about a third of all elderly
this area is needed. And I hope the topic will come up in your discussions.
people take some form of vitamin and/or mineral supplements. In one study it
was found that a fourth of these were taking precisely the wrong ones. Many
I also wonder whether you will find it possible to define the specific nutritional
older people, particularly those in the higher income groups, take supplements
deficiencies that are most commonly found among the elderly and to suggest
even though their diets contain the nutrients they need.
whether special efforts should be made to overcome them. If so, what special
efforts should be made? For example, I have been informed that calcium deficiency
An inadequate understanding of nutritional needs has the further unfortunate
is quite common among older people and that this may be the reason why osteopo-
effect of making it hard for people to distinguish between useful information on
rosis, bone fractures and other skeletal problems are so prevalent in these age
dietary needs that is issued by government, business and industry sources and
groups. Deficiencies in iron, in A, C and the B vitamins also seem to be mentioned
the information supplied by those who profit from exploiting the gullible.
frequently in studies of malnutrition among older people.
One issue you may want to consider is whether, and how, measures might be
Weight control is another topic that comes under your domain and is certainly of
taken to protect the elderly from the misuse of their expenditures for dietary
great interest to the elderly as to most age groups. I understand that nutritionists
improvement.
advocate that we maintain, throughout life, the weight that is normally achieved at
age 22. If this has an important bearing upon our health in the later years, it
Low income, of course, is the overriding reason why many older people are not
affords one very practical reason why education for aging should begin early.
getting enough of the kinds of food that will keep them in the best health. As we
grow older, we should consume less food. But the kinds of food we need, unfortu-
The body's need for fluoride is another topic of wide, if controversial, interest.
nately, are those that are likely to be most costly - the kinds that are high in
Though its value in preventing tooth decay in children has been well established,
proteins, minerals and vitamins. Although problems relating to income as such
its introduction into water supplies has often been opposed by elderly people as
will be considered by another technical committee, any background material you
contributing to various ailments associated with aging. Now, I understand, studies
can supply on nutritional problems related to poverty should prove most helpful.
have shown that such fears are groundless. What's more, low amounts of fluoride
introduced into water supplies may have positive benefits to the aged; like calcium,
Lack of knowledge and lack of money are probably the answers most people
it tends to strengthen the bone structure. Is this an issue that the Conference
would give if asked why they thought malnutrition is so prevalent among the elderly.
should consider?
But it would be interesting to know how these causes rank in relation to less tangible
factors such as loneliness, alienation and apathy.
Other issues which it seems might be helpful for this Committee to consider are:
For example, we know that programs that deliver nourishing meals in their
What is the best way of meeting the immediate problem of malnutrition among
homes to people who are too frail to shop and prepare their own meals do a
the elderly in low-income groups? President Nixon has called upon Congress
tremendous amount of good. But home-delivered meals may be the wrong
toprovide more adequate incomes for older Americans by raising minimum
answer for lonely people who need the stimulation of social contacts to motivate
payments to $110 a month and by providing for automatic cost-of-living
them to eat enough food. Providing transportation to meals served at some
increases in Social Security payments. But, are higher incomes alone
central facility might better serve their needs.
sufficient to assure nutritional adequacy among the aged? What additional
measures might be helpful?
Another example: When nursing homes and other institutions that serve the
elderly have a clientele of diverse ethnic, religious and cultural backgrounds, are
How can food service programs for the elderly be expanded to reach more
uniform menus adequate? Is it reasonable to expect the aged to adjust to strange
people in more communities? What types of services and programs should
foods prepared in ways that are strange to them? On the other hand, is it feasible
have priority? To what extent are meal-service programs made more ef-
for institutions to cater to differences?
fective where given and supported by a program of needed social services?
What services should be included? Should a charge be made? If so, how
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much should it be and who should pay? Who should be eligible?
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Are there transportation and education problems related to the ability of the
elderly to obtain adequate diets that are so important that they merit consi-
deration by your Committee as well as those technical committees on Edu-
cation and Transportation?
Is this nation actually able and willing to provide adequate diets for its
elderly? If so, what is the share and the nature of responsibility that must
be assumed by the elderly themselves? By government? By business and
industry? By members of the health, welfare and other helping professions?
And by other concerned groups and individuals?
This last issue is so broad that it probably covers all the specific issues that
will occur to any of us. In dealing with it, however, I hope you will focus on the
specifics. Action is not prompted by broad generalities. The more concrete,
specific and pertinent the issues that you, as a Committee, develop, the greater
will be the likelihood that effective action will be taken.
Action, I am sure you will agree, is our whole purpose in having the White
House Conference on Aging, and all the State and community White House con-
ferences that lead up to it. I know I speak for thousands who will use your material
during these meetings in expressing appreciation for the time and effort you are
putting into this work and in wishing you great success.
***
GSA DC 71-8090
aging
THE 1971 WHITE HOUSE CONFERENCE ON AGING:
THE END OF A BEGINNING?
A survey of actions in the field of aging
since the 1961 White House Conference on Aging
Prepared by
NATIONAL RETIRED TEACHERS ASSOCIATION
AMERICAN ASSOCIATION OF RETIRED PERSONS
THE 1971
WHITE HOUSE CONFERENCE
ON AGING:
THE END OF A BEGINNING?
A Progress Report Since the 1961 Conference
National Retired Teachers Association
American Association of Retired Persons
1225 Connecticut Avenue, N.W.
Washington, D. C. 20036
PREFACE
This report surveys the progress made in behalf of older
Americans since the first White House Conference on Aging
held in 1961. It assumes that an examination of the successes
and failures of the past 10 years can help to sharpen the focus
of the 1971 Conference.
The 1961 White House Conference, which Congress had au-
thorized in 1958, was a beginning. Its main value lay in heighten-
ing public awareness of the problems of the aged. Most or all
of those problems persist. Some, notably transportation, hous-
ing management and services, as well as consumer protec-
tion, were barely visible in 1961. Others, perhaps, remain to be
identified.
The main task of the 1971 Conference is to pinpoint more
realistically and comprehensively the actions needed to solve
these problems and to move toward the development of an
achievable national policy on aging. It can ill afford to become
another beginning, a new exercise in defining problems.
In preparing this document, the National Retired Teachers
Association and the American Association of Retired Persons
used many sources, but the main one was a staff inventory of the
huge number of recommendations passed at the 1961 Conference.
Omitting those that were simply philosophical assertions and
duplications, the staff sorted out the 1961 proposals as a basis
for assessing what has been done in behalf of the aged in the
past 10 years. It consolidated the more than 700 recommenda-
tions into 160 and structured the inventory largely according to
the 1971 Conference format. The 14 chapters in this report
reflect this mode of organization.
An undertaking of this magnitude could not have been
possible without the assistance of many individuals. In particu-
lar, I wish to thank Dr. Frederick J. Ferris, Coordinator of the
1971 White House Conference on Aging for NRTA-AARP, Isaac
Hoffman, who assumed the main responsibility for the consoli-
dated inventory, Michael McPadden, Ralph Leach, and Jan Ozga.
Special consultant Henry Goldstein wrote this report. The con-
Copyright 1971, the National Retired Teachers Association
solidated inventory is being published as a separate document.
and the American Association of Retired Persons
Library of Congress Catalog No. 74-185014
Bernand E. Doch Dash
All rights reserved.
BERNARD NASH
October 15, 1971
Executive Director
iii
TABLE OF CONTENTS
Page No.
Preface
iii
Tabulation of Recommendations
vi-vii
PART ONE: NEEDS AREAS
Chapter I-Income
1
Chapter
II-Health and Mental Health
7
Chart: Medicaid Services—
State by State
12-13
Chapter III-Nutrition
21
Chapter
IV-Housing and Environment
27
Chapter
V-Transportation
33
Chapter
VI-Employment and Retirement
39
Chapter
VII-Education
45
Chapter VIII-Retirement Roles and Activities
49
Chapter
IX-Spiritual Well-Being
55
PART TWO: NEEDS-MEETING MECHANISMS
Chapter X-Planning
59
Chapter
XI-Facilities, Programs and Services
65
Chapter XII-Research and Demonstration
71
Chapter XIII-Training
75
Chapter XIV-Government and Non-Government
Organization
79
V
1961 WHITE HOUSE CONFERENCE ON AGING
1961 Conference
Consolidated
RECOMMENDATIONS AND STATEMENTS
Recommen-
State-
Recommen-
SECTIONS
dations
ments
dations
Arranged by subjects of the 1971 Conference Sections
1961 Conference
SPIRITUAL WELL-BEING
15
2
4
Consolidated
Recommen-
State-
Recommen-
SECTIONS
dations
ments
dations
TRANSPORTATION
2
1
1
EDUCATION
41
7
10
FACILITIES, PROGRAMS
AND SERVICES
A. Organization and Financing
19
1
4
49
15
12
B. Educational Resources
8
1
2
A. Organization and Support
16
4
4
C. Educational Curriculum
14
5
4
B. Senior Centers-Golden Age Clubs
7
1
1
C. Specific Services
26
10
7
EMPLOYMENT AND RETIREMENT
36
6
10
GOVERNMENT AND NON-
HEALTH AND MENTAL HEALTH
118
29
25
GOVERNMENT ORGANIZATION
119
23
16
A. Medical Care
34
8
5
B. Rehabilitation Services
45
9
A. Federal Government
3
18
6
4
B. State Government
C. Institutional Care
24
8
6
29
9
4
C. Local
D. Health Care Financing
15
10
5
40
5
4
D. Voluntary (Non-Government)
Organizations
32
HOUSING AND ENVIRONMENT
90
21
21
3
4
A. Supply and Demand
7
7
2
PLANNING
22
B. Financing
22
3
5
3
4
C. Subsidized Housing
14
3
3
A. Organization and Support
19
2
2
D. Housing Standards
16
2
5
B. Functions
3
1
2
E. Organization and Planning
19
2
3
F. Research and Information
12
4
3
RESEARCH AND DEMONSTRATION
127
5
15
INCOME
75
3
24
A. Organization and Support
31
0
5
A. OASDI
33
0
10
B. Bio-Medical Research
55
0
4
B. Nongovernment Pensions
12
0
5
C. Social and Psychological Research
41
5
6
C. Other Income Plans
2
0
2
D. Public Old Age Assistance
28
3
7
TRAINING
72
15
7
4
A. Training Requirements
38
NUTRITION
10
3
6
3
B. Professional Education
22
6
2
A. Nutrition Services
7
1
2
C. Staff Development
12
3
2
B. Nutrition Education
3
2
2
RETIREMENT ROLES AND
TOTALS
804*
143
160
ACTIVITIES
28
10
7
A. Fostering Roles and Activities
17
5
3
B. Organization
5
0
2
* The 1961 Conference produced 707 recommendations and 120 statements. The
C. Attitudes and Awareness
6
5
2
apparent discrepancy in totals is explained on pages i and ii of The 1961 White House Con-
ference on Aging: Inventory of Recommendations, published by NRTA-AARP.
vi
vii
PART ONE: NEEDS AREAS
Chapter I
INCOME
<<<<<<<<<<<<<<<<<<<<<<<<<
<<<<<<<<<
THE
0
<<<<<<<<<<<<<<<<<<<<<<<<<
-
I
an
the
We
STATE
i
1 101
1
CHAPTER I: INCOME
In The Other America* which inspired John F. Kennedy to
conceive the strategy of a war on poverty, Michael Harrington
wrote: "This is no country for old men.
Some of them are
new entrants to the world of the other America, drifting down
from a working life of decent wages to an old age of dependency
and social workers. A good many are old and poor because they
were young and poor, middle-aged and poor."
The 24 consolidated recommendations on income maintenance+
issued at the 1961 White House Conference on Aging reflected
the delegates' sensitivity to one of the dominant concerns of older
America. Of those recommendations, the NRTA-AARP inven-
tory identified 10 that dealt with Social Security and 5 that
concerned private pensions.
Social Security
The proposals on Social Security focussed on increasing the
level of cash benefits, adjusting it to increases in the cost of living
and extending coverage to all individuals not then protected by
Old Age, Survivors and Disability Insurance.
Developments Since the 1961 Conference
Although most experts agree that the record has been uneven
at best and that some basic problems remain, the last ten years
have produced a number of actions to support the Conference's
recommendations. In 1961, for example, Congress lowered the
Social Security eligibility age for men from 65 to 62. In doing
so, it was mindful of the impact of modern technology on older
workers, who were increasingly being displaced from the labor
market. Congress also broadened the Social Security program
to include 160,000 retired persons, increased benefits to aged
widows by ten percent and raised the amount a beneficiary could
earn without losing benefits.
Despite a warning by Secretary of Labor Willard Wirtz in
1963 that the continued surge of population and technology was
threatening to create "a human slag heap," further efforts to
* The Macmillan Company, New York, 1962, p. 102.
+ This chapter confines itself largely to government and private pensions.
Those 1961 recommendations having to do with health care financing, em-
ployment and housing are discussed in the appropriate chapters.
1 Chapter VI, "Employment and Retirement," discusses this aspect of
income more fully. See also Chapter VIII, "Retirement Roles and Activities,"
which deals, in part, with opportunities for part-time income.
3
strengthen income benefits under OASDI proved abortive until
Americans, to review existing public and private sector programs
1965. In that year, the law creating Medicare also contained
and to recommend actions.
Social Security amendments, including new increases in cash
This new initiative came in a year when a steady downward
benefits and a provision that made widows eligible to receive
trend in the incidence of poverty among the aged was being
reduced benefits at 60 instead of waiting until they reached 62.
reversed and when both the number and proportion of aged
In 1966, a year when the Gross National Product soared to
poor had increased over 1968. As the Senate Special Committee
$743 billion and the minimum monthly OASDI benefit was $44,
on Aging noted in its 1970 annual report: "In 1969, older Amer-
the Senate adopted the Prouty Amendment to The Tax Adjust-
icans were twice as likely to be poor as younger persons. One
ment Act of 1966, providing Social Security benefits for nearly
out of every four persons 65 and older-in contrast to one in
all U. S. residents aged 70 and over who had not previously been
nine younger persons-was living in poverty."
eligible.
In its report, published in April, 1970, the President's Task
The pace of Social Security improvements accelerated some-
Force on Aging recommended the abolition of the work income
what during 1967 after President Lyndon Johnson's message to
test for persons between 62 and 72 years of age. It called, too,
Congress on older Americans. Congress responded by providing
for the computation of OASDI benefits based on the combined
an increase of 13 percent in cash benefits, and increasing slightly
earnings of husband and wife, an action also urged by the
the amount of earnings a beneficiary under 72 could receive with-
NRTA-AARP Legislative Council in its 45-point program
out loss of benefits.
adopted in 1970.
Nevertheless, these small, incremental gains prompted the
At the same time, the Task Force noted that more than two
Senate's Special Committee on Aging to conclude in its 1967
million elderly Americans who are eligible for Old Age Assistance
annual report on "Developments in Aging" that there was still
are not now receiving it and that even for those who do, the
no mechanism for sustained, comprehensive attention to the
standards in many States are "grossly inadequate." As distinct
problems involved in retirement income. In a study published
from OASDI, which provides benefits to rich and poor alike on
the following year, the Social Security Administration also struck
the basis of prior contributions, potential recipients of Old Age
a cautionary note when it observed that the increases voted in
Assistance must prove personal need. The Task Force recom-
1967 only momentarily restored the purchasing power of bene-
mended revisions in the Family Assistance Plan, the Administra-
ficiaries to the level it was at when they first became eligible.
tion's welfare reform proposal, to bring all the elderly poor up
The study concluded: "Unless statutory
increases (do) more
to the poverty line, with the Federal government assuming 100
than just match upward price movements from the time of one
percent of the costs.
benefit increase to the next, inflation will continue to adversely
Although the Senate passed the 1970 Social Security Amend-
affect the retirees' purchasing power.
ments by a vote of 81 to 0, no conference committee meetings
In his April, 1969, message to Congress on Social Security,
took place because of the belief that it would be impossible to
President Richard Nixon asked the legislators to consider such
work out differences in the House and Senate bills before the
rising costs, a theme he developed further in September, 1969,
close of the 91st Congress.
when he specifically requested that future benefits be "auto-
matically adjusted to account for increases in the cost of living."
Private Pensions
Congress has yet to implement this proposal.
The 1961 White House Conference on Aging recognized that,
The President also called for an increase from $1,680 to
as in other areas, responsibility for improving the income status
$1,800 in the amount pensioners could earn annually without
of the elderly could not fall solely to government. Conference
reduction of their benefits, as well as for liberalized retirement
recommendations ranged from extending the coverage of private
test standards.
pension plans to improving vesting and portability rights. A
On October 10, 1969, President Nixon appointed a 14-member
vested pension plan guarantees the participating worker some
Task Force on Aging to examine the problems faced by older
degree of equity even if he leaves or loses his job before retire-
4
5
ment. Portability allows the worker who moves from one job to
another to continue to accrue rights to pension benefits.
Two years after these recommendations were adopted, the
Senate Special Committee on Aging observed that despite the
swift growth of private pension systems, the absence of early
vesting and broad coverage suggested that most retired persons
would continue to rely mainly on OASDI benefits.
Chapter II
In 1970, the President's Task Force on Aging came to much
the same conclusions about the limitations of private pension
plans. It stated its belief, however, that "voluntary programs
HEALTH AND
which supplement the basic social insurance system are particu-
larly desirable in as diverse an economic structure as that of
MENTAL HEALTH
the United States."
Specifically, the Task Force recommended the establishment
of an independent Pension Commission, which would monitor
private pension programs and protect the rights of employees
in much the same way that the Securities and Exchange Com-
mission looks out for the interests of stockholders. The Task
Force took an approving view of earlier vesting, and also recom-
mended that the proposed Pension Commission enlist the support
of the financial community in designing a portable, voluntary
pension plan. There has been no action as yet on these and other
important parts of the Task Force report.
According to a study of private pension plans made by the
Senate Subcommittee on Labor in March, 1970, 30 million
Americans now have a stake in private pension plans whose funds
already show assets of $130 billion and are expanding at the
rate of $10 billion a year. "As things stand now," said Senator
Jacob Javits, a member of the subcommittee, "only a relative
handful of the estimated tens of millions of American workers
under private pension plans will ever get anything from the
plans on which they now stake their futures."
6
7
CHAPTER II: HEALTH AND MENTAL HEALTH
In the fall of 1959, the Joint Economic Committee of Congress
observed that "a revolution of rising expectations" was taking
place in the field of health and medical care. "Widespread con-
cern about the chronic and degenerative health problems of
aging," the committee said, "reflect an awareness of the human
and social costs imposed by increases in the older age groups of
the American population."
The 1961 White House Conference on Aging reflected this
heightened awareness, and produced far-reaching recommenda-
tions on health insurance, mental health, rehabilitation and
nursing care.*
Health Insurance
The key recommendation made by the majority of the more
than 2,500 delegates who convened at Washington's Constitution
Hall was a proposal for financing health care within the frame-
work of the Social Security system.
In the year prior to the 1961 Conference, Congress had passed
the Kerr-Mills Act, which called for shared Federal and State
aid to meet the problems of those living above the poverty level
but unable to afford medical expenses. The rationale for this
more limited approach was that nearly one-third of Old Age
Assistance funds were then being used for the cost of health
care, and that despite the fact that almost one-half of all elderly
persons had some form of health insurance (mainly hospital
coverage), it was meeting only one-sixth of their total medical
costs.
Developments Since 1961
After two years of operation, more and more professional
experts and independent observers agreed that the Kerr-Mills
Act was inadequate because it existed in only one-half of the
States, was not designed to prevent indigency, had to rely on
matching funds, merely transferred the cost burden from the
Federal to State governments, and had many benefit limitations,
particularly on extended care facilities. Most important, perhaps,
in the view of its critics, it contained a degrading means test
that required potential recipients to furnish proof of their
financial eligibility.
* See Chapter III for a discussion of the health-related problem of
nutrition.
9
In 1964, "Blue Cross and Private Health Insurance Coverage
health care costs, has focussed on its exclusions or restrictions
of Older Americans," a report by the Subcommittee on Health
on preventive, rehabilitative and long-term institutional care, on
of the Elderly to the Senate Special Committee on Aging, scored
appliances such as hearing aids and eye glasses, and on out-of-
the deficiencies of the Kerr-Mills Act, and maintained that pri-
hospital prescription drugs.
vate insurance companies, by themselves, were incapable of meet-
The importance of the gap on prescription drugs, for example,
ing the health care costs borne by older persons. (Among several
was dramatized in 1959 and 1960 when the Senate Subcommittee
notable exceptions was a plan underwritten by a major insurance
on Antitrust and Monopoly, chaired by Senator Estes Kefauver,
firm that NRTA introduced in 1956, the first group coverage
held hearings on the drug industry. In one instance, the Kefauver
offered to retired persons in the United States.)
Committee revealed that a major American drug manufacturer
According to the report, one-half of the 65 and older group
had bought a drug from a foreign firm and sold it at a markup
with health insurance had inadequate coverage, and not more
of 7,079 percent.*
than 750,000 elderly persons were covered under mass enroll-
As Richard Lichtman has noted "Senator Kefauver described
ment programs of individual insurance companies.
the content of numerous letters directed to him during the
In 1965, despite a lobbying effort by the American Medical
investigation of his committee that described the plight of elderly
Association and private insurance companies, Congress enacted
people suffering from arthritis. Their social security payments
Medicare and Medicaid legislation that the Senate Special Com-
were approximately $60 a month. Their doctor's prescription
mittee on Aging described in 1970 as "overshadowing all else
called for three Meticorten tablets a day, an expenditure of nearly
during
the
past
decade
in
the
health
field.
$30 a month, or half their monthly income."t
Implemented in 1966, Medicare was the first large-scale
Critics of Medicare have also objected to the fact that both
Federal health insurance program in the nation's history-
Parts A and B require excessive and ever-increasing deductibles
although the United States was the last industrial democracy in
and co-payments to cover initial costs. According to the May
the western world to adopt such a program. As President Lyndon
1971 Social Security Bulletin published by the Social Security
Johnson said in signing the bill at the Truman Library in Inde-
Administration, Medicare now covers only 43 percent of the
pendence, Missouri, "We marvel not simply at the passage of the
medical expenses of the elderly.
bill but
that it took so many years to pass it."
Medicare provided both hospital and medical coverage to all
Criticism of Medicaid has centered ironically on the wide
those 65 and over, except retired Federal employees who are
variation in Medicaid eligibility and services among the States
covered by the Federal Health Benefits Acts. Part A of the bill
administering the program (see chart on pages 12-13), the same
criticism directed at the Kerr-Mills Act.
consists of compulsory hospitalization insurance financed by an
increase in the base and rate of the Social Security tax. Part B
Many experts in the aging field now agree that the ultimate
is the voluntary program of supplemental medical insurance
solution to the health problems of the elderly lies in a national
designed to pay for certain physicians' and other medical services
health plan that would guarantee comprehensive health care to
and supplies not covered in Part A. It is financed by general
all regardless of age or ability to pay. They reason that such an
revenues and, to a lesser extent, by patient premiums. Medicaid,
ideal plan would cover Medicare exclusions and provide for the
which replaced the Kerr-Mills Act and was designed to aid OAA
broad spectrum of services recommended by the 1961 Conference
recipients and the medically indigent, is financed by Federal,
-preventive, curative, rehabilitative and long-term care.
State and local taxes.
Some national proposals view prepaid group medical prac-
In its 1970 annual report, "Developments in Aging," the
tices, which are also known as health maintenance organizations,
Senate Special Committee on Aging characterized Medicare and
or HMO's, as the best vehicle for delivering such comprehensive
Medicaid as "experiments from which hard lessons can be
* The Real Voice, Richard Harris, Macmillan Company, 1964, p. 62.
learned."
+ Toward Community, The Center for the Study of Democratic Institu-
Criticism of Medicare, which was never intended to cover all
tions, June 1966, p. 32.
10
11
BASIC REQUIRED MEDICAID SERVICES: State Medicaid programs are required by law to offer at least these Basic Medicaid Services: inpatient hospital care;
outpatient hospital services; other laboratory and X-ray services; skilled nursing home services for people 21 or older; home health services for any eligible individual
who is entitled to skilled nursing home services; screening and treatment for individuals under 21 as may be provided in regulations of the Secretary; and physicians'
services. Transportation is required by Federal regulation.
MEDICAID SERVICES STATE BY STATE, MARCH 1971
Services provided only under the Medicare buy-in or the screening and
Definitions and limitations vary from State to State. Details are
treatment program for individuals under 21 are not shown on this chart.
available from local welfare offices and State Medicaid agencies.
offered for people
receiving federally
Additional services for which Federal financial participation is available to States under Medicaid.
ICF
supported financial
assistance
BASIC*
+
Dre,
FOR
offered also for
REQUIRED
people in public
MEDICAID
assistance
SERVICES
categories² who
are financially
12
SEE
eligible for
ABOVE
medical but not
for financial
Chinic services
Prescribed drugs
Other Private related Physical duty
40 and & i// Family plannig. Skilled services Datents June 21 services services
Care for institutions institutions Chiropractors's for for patients patients services 65 or services mental
Care older in
FMAP³
assistance
Dental
Prostante
I factifies
Alabama
AL
78
50
Alaska
AK
64
Arizona
AZ
Arkansas
AR
79
50
+
California
+
+
+
+
+
+
+
+
+
+
+
+
CA
CO
58
Colorado
50
+
Connecticut
+
+
+
+
+
+
+
+
+
+
+
+
+
CT
DE
50
Delaware
50
+
D.C.
+
+
+
+
+
+
+
+
+
DC
Florida
FL
61
70
Georgia
GA
50
+
Guam
+
+
+
+
GU
51
+
Hawaii
+
+
+
+
+
+
+
+
HI
ID
72
Idaho
50
+
Illinois
+
+
+
+
+
+
+
+
+
+
+
+
.
IL
Indiana
.
IN
55
lowa
IA
58
59
+
Kansas
+
+
+
+
+
+
+
+
+
+
+
+
+
.
KS
+
+
+
KY
73
+
Kentucky
+
+
+
LA
73
Louisiana
69
Maine
ME
50
Maryland
+
+
+
+
+
+
+
+
+
MD
50
+
Massachusetts
+
+
+
+
+
+
+
+
+
+
+
+
+
MA
50
+
Michigan
+
+
+
+
+
+
MI
57
+
Minnesota
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+
MN
83
Mississippi
MS
60
Missouri
MO
67
Montana
.
MT
58
+
Nebraska
+
+
+
+
+
+
+
+
+
+
+
+
+
+
NB
50
Nevada
.
.
NV
59
+
New Hampshire
+
+
+
+
+
+
+
+
+
+
NH
50
New Jersey
.
NJ
73
New Mexico
NM
50
+
New York
+
+
+
+
+
+
+
+
+
+
+
+
+
+
NY
73
+
North Carolina
+
+
+
+
+
+
+
+
NC
71
+
North Dakota
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+
ND
54
.
Ohio
OH
69
+
Oklahoma
+
OK
57
Oregon
.
.
.
.
.
.
.
.
.
OR
55
+
Pennsylvania
+
+
+
.
+
+
+
PA
50
+
Puerto Rico
+
+
+
+
+
PR
50
+
Rhode Island
+
+
+
+
+
RI
78
South Carolina
.
.
SC
Intermediate Care Facilities (ICF): Institutional services in intermediate care facilities are authorized under itles I,X, XIV, and XVI for public assistance recipients needing more care
70
South Dakota
SD
74
Tennessee
TN
65
Texas
.
.
.
.
TX
70
+
Utah
+
+
+
13
+
than they can receive at home but not needing the level of care furnished by skilled nursing homes under Mec ficaid (Title XIX).
+
+
+
+
+
+
+
+
+
UT
65
+
Vermont
+
+
+
+
+
+
+
+
+
VT
50
+
Virgin Islands
+
+
+
+
+
+
+
+
VI
64
+
Virginia
+
+
+
+
+
+
+
+
+
+
VA
50
+
Washington
+
+
+
+
+
+
+
+
+
+
+
+
+
+
+
WA
77
West Virginia
.
.
.
.
.
.
.
.
WV
56
+
Wisconsin
+
+
+
+
+
WI
63
Wyoming
WY
25
10
22
12
18
13
9
14
8
9
14
15
17
16
8
13
13
32
27
+
18
24
20
17
20
10
17
9
8
19
16
17
18
13
21
15
52
Total
28
46
32
35
33
19
31
17
17
33
31
34
34
21
34
28
32
People qualifying as aged, blind, disabled, or members of families with dependent children (usually families with at least one parent absent or incapacitated).
FMAP -Federal Medical Assistance Percentage: Rate of Federal financial participation in a State's medical vendor payment expenditures on behalf of individuals and families
eligible under Title XIX of the Social Security Act. Percentages effective from July 1, 1971, through June 30, 1973, are rounded.
UNITED STATES DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
Social and Rehabilitation Service
Medical Services Administration
data from approved state plans as of March 1971
msa-801-71**
public information office
services. Patients pay in advance to keep well, and not just for
Community Mental Health Centers had been built, but funds
treatment when they are sick. Currently, however, 22 States
were recently cut for the program.
regard HMO's as illegal.
Unfortunately, only a small fraction of the elderly mentally
ill have benefited from community mental health care. In a tech-
Mental Health: Comunity Health Centers
nical paper prepared for the 1971 White House Conference on
Delegates to the 1961 White House Conference passed several
Aging, Dr. Alex Simon attributes this to the reluctance of the
recommendations calling for an increase in the number of treat-
aged and their families to seek help and to the negative way in
ment facilities, especially halfway houses, more psychiatric aides
which both mental health professionals and the general public
and expanded coverage for treatment of mentally ill aged persons.
perceive the older, seemingly senile person. Many health profes-
sionals cite as an additional problem the fact that Medicare pro-
Developments Since 1961
vides for only 190 "lifetime" days of care in a psychiatric
In the early 1960's, 125,000 (25 percent) of the 500,000 mental
hospital, although mental illness often requires a longer
patients in State and County hospitals were 65 and older. There
period of care. This is particularly true for those who have
are many indications that elderly persons had been committed
reached old age, the most difficult period of adjustment in the
because of premature "senility" induced by fear of illness and a
human life cycle. Dr. Simon observes that the 190-day ceiling
sense of economic helplessness, feelings heightened by the pres-
on psychiatric hospital care is just another example of designing
treatment to fit available benefits rather than actual mental
sures of modern urban life on the family. Many of them remained
health needs of the elderly.
there, severed from their communities, friends and loved ones,
and stripped of responsibility in an often authoritarian, custodial
Rehabilitation
setting.
The NRTA-AARP Consolidated Inventory identified nine
In 1963, Congress passed a law providing for community-
basic proposals that the 1961 Conference made on Rehabilitation
based mental health centers for persons of all ages. At the time,
Services. The ones that seemed to express the basic intent of
organizations working with the aged hoped that the new legis-
the delegates focussed on the need for establishing a National
lation would respond to the fact that the situation of mentally
Institute of Rehabilitation; making adequate rehabilitation serv-
ill elderly persons had shown the least improvement of any
ices a condition for accreditation of hospitals; expanding voca-
tional rehabilitation services at the State level to the older handi-
age group.
capped person and removing arbitrary age limits; expanding
Since the legislation provided only the brick and mortar,
health insurance plans to provide in-patient and out-patient cov-
Congress amended the Act in 1965 to appropriate funds to
erage in hospitals and rehabilitation centers; and encouraging
staff the centers adequately. The Public Health Service issued
research to devise improved administrative mechanisms.
regulations requiring centers to offer five "essential services" to
qualify for Federal aid: In-Patient Care; Out-Patient Care;
Developments Since 1961
Partial Hospitalization; Emergency Care; and Consultation and
In 1965, Congress acted to improve the delivery of health
Education. In addition, it specified the need for Diagnostic,
care by passing the Heart, Cancer and Stroke Amendments to
Rehabilitative, Pre-Care and After-Care Services Training and
the Public Health Service Act. This created Regional Medical
Research Evaluation.
Programs to foster "cooperative arrangements" among medical
At the time, many professionals felt that the new legislation
schools, hospitals and rehabilitation centers, and to provide
would stimulate the growth of psychiatric day hospitals and
greater flexibility in local health planning. In 1966, in an effort
halfway houses, and would set the pattern for future psycho-
to gain greater cohesion in Federal health programs, Congress
therapy. By 1970, more than 500 halfway houses-transitional
enacted the Partnership for Health Program.
facilities for those not yet ready to function outside of institutions
One Conference objective was realized in April, 1971, when
-were in existence. As of July, 1971, 262 Federally funded
the Joint Commission on Accreditation of Hospitals required
14
15
hospitals, nursing homes and similar health care units to have
kinds of care; encouragement of home care, wherever possible;
a program of social, dental and rehabilitative services. The 1961
and reviews to insure proper treatment at the right place.
Conference's recommendation for creation of a National Institute
The delegates to the 1961 Conference stressed individual
of Rehabilitation has yet to be achieved.
reliance and self-dignity as the primary goal in institutional
In an article entitled, "Where Doctors Fail," published in the
nursing care. In addition, they recommended provision of care
August 22, 1970, Saturday Review, Dr. John Knowles, now
without regard to ability to pay; improved licensing and inspec-
President of the Rockefeller Foundation, wrote: "Our acute,
tion methods; and Federal initiatives to make enough public
curative, scientific and technical service is unexcelled in the
funds available for long-term care and to provide proper safe-
world. Our preventive and rehabilitative services and our ex-
guards for their efficient use.
tended care and nursing facilities are dismal."
Developments Since 1961
There are several proposals for national health insurance.
In its 1970 annual report, the Senate Special Committee on
Each makes some claim to comprehensiveness. While some call
Aging concluded: "While there has been substantial progress
for more liberal coverage than others, none appears to meet
in meeting the institutional needs of the one million institutional-
completely the criteria for comprehensiveness developed at the
ized elderly, there continue to be serious problems. The needs of
1970 Conference on National Health Insurance held at the Uni-
this group have been assigned low priority and the programs
versity of Pennsylvania, nor do they wholly answer Dr. Knowles'
which have developed are often piecemeal, inappropriate, illusory
complaint about preventive, rehabilitative and extended care
and short-lived. What is reflected is a lack of a firm policy for
facilities. As Wall Street Journal reporter Jonathan Spivak
the infirm elderly
the rhetoric speaks of care and concern
observed, in summarizing the Health Insurance Conference: "The
but the reality resembles confusion, high costs, and too often,
pros and cons of these (proposed) reforms are subject to endless
poor care or no care at all for those who need it." Although the
debate by the technicians. But the legislators and the public find
Committee made a number of minor recommendations, no new
exhaustive analysis of new 'models' of health care delivery
programs as such have been proposed in Congress.
systems unenlightening and probably deeply confusing because
The specific achievements and the shortcomings of the past ten
of the many disagreements over details.
years regarding nursing care improvements may be summarized
as follows:
Nursing Homes
On the need for a broad spectrum of services
The NRTA-AARP Consolidated Inventory identified six
Together, the Social Security Amendments of 1967 and the
major groups of recommendations on institutional care that were
Housing Act of 1969 made it possible to develop a new
adopted by the 1961 White House Conference on Aging. A
category of intermediate care facilities (i.e., personal care
number of those proposals concerned the vital area of long-term
and minor medical attention). This augments so-called
and intermediate hospital care. Nursing homes, 90 percent of
"extended care facilities" (intensive, post-hospital, short-
whose residents, or one million persons, are 65 and older, render
term care by professional nurses), as well as "skilled care
most of this care. Medicare and Medicaid pay for two-thirds of
facilities" (long-term care for the convalescent or dying
nursing home charges. Together, they represent proportionately
patient), and completed the spectrum beginning with acute
the services most heavily subsidized by the Federal government.
in-patient hospital care. As the Senate Special Committee
The major 1961 recommendations on nursing homes called for
on Aging reported in 1970, however: "Unfortunately, not
"a broad spectrum" of institutional nursing facilities; compre-
many nursing institutions offer much innovation and one
hensive planning to avoid over-building in some areas and
facility very much resembles another.
Few nursing
scarcity in others; uniform standards or definitions for different
homes offer adequate social services such as family coun-
seling or psychiatric counseling, and almost none offers
* National Health Insurance Conference Proceedings, sponsored by the
Leonard Davis Institute of Health Economics, Richard D. Irwin, Inc., Home-
preventive medicine."
wood, Illinois, 1971, p. 274.
England and the Scandinavian countries have developed a
16
17
number of new approaches in nursing home care that may
in the same year. Moreover, not all States have set up Home
well serve as models for the United States. One service
Health Services. This leaves only volunteer programs that
that has won particular praise from gerontologists offers
bring medical or personal services into the homes of the
short-term care to elderly persons when their adult children
aged infirm.*
go on vacation. Another service designed to ease the bur-
On insuring the right match between patient and type of
den of adult children provides similar short-term care in
care
the event that a chronic condition flares up.
Congress has enacted two programs-utilization review
On the need for comprehensive planning
under Medicare and medical review under Medicaid. Utili-
The Senate Subcommittee on Long-Term Care concluded
zation review is aimed at the efficient use of facilities and
that this recommendation had not been implemented. One
has been working with some success. Medical review, which
notable exception was the State of Connecticut which re-
is concerned with the needs of individual patients, has not
quires would-be nursing home proprietors to obtain a cer-
yet been implemented because HEW regulations for State
tificate of need from the State licensing agency before they
guidelines were not issued until February, 1971.
can build a nursing home in any area.
In Australia, a clinical team consisting of a social worker,
One official of the United States Public Health Service con-
psychologist and physician goes out into the field immedi-
cedes that comprehensive planning has not moved forward
ately to evaluate the level of care required. Many authori-
as many persons had hoped it would, because of the lack
ties on aging believe that this team concept, coupled with
of adequate funds. The official noted that while several
appeal procedures for individual patients, may improve
bills on long-term care are now being devised by both the
American efforts to match the needs of patients with the
Administration and Congress, little has been done until
type or level of treatment.
now in this area.
On individual self reliance and personal dignity
On the need for uniform definitions
A Ralph Nader study group report, Old Age: The Last
Segregation (Grossman Publishers, New York, 1971),
Little progress has been made. The American Nursing
offers impressive evidence that nursing homes have been
Home Association reports that there are more than 120
derelict in fostering the attainment of these goals, a view
different names for nursing homes. Utah, for example, has
shared by many experts. At the Wingspread Conference
10 different levels of care, and Wisconsin, 12. As of
on "The Elderly Population In Our Society" held in De-
fiscal year 1970, 695 of 4,656 Extended Care Facilities
cember, 1970, in Racine, Wisconsin, Charles W. Reich
stopped participating in the Medicare/Medicaid programs
observed that nursing homes "are spending more money
because of a reluctance to comply with Federal norms. The
per person and giving less care-it's depersonalized." There
result of their withdrawal is most strikingly evident in
seems to be general agreement among professionals in the
Wyoming where elderly persons who have spent a lifetime
aging field that the lack of trained personnel, the low pay
making OASDI contributions now have only one facility to
they receive and the extraordinary pressures and demands
turn to for nursing home care under Medicare in the entire
of their work subvert the possibility of personal dignity
State.
for themselves and, by extension, for the elderly patients.
On Encouraging Non-Institutional Community Services
Many believe that training and decent salaries for nursing
Home Health Service is imperative if a Medicare patient
home employees would enhance their status, lessen the
exhausts his 100 day limit* per benefit period and is not
pressures they face and ultimately benefit the elderly
eligible for Medicaid. Although Medicare has required
patient.
such services, and certified 2,350 such agencies to partici-
On not denying care because of inability to pay
pate in the program in 1970, these programs were cut back
During field hearings, the Subcommittee on Long-Term
* The 1970 report of the President's Task Force on Aging recommended
* See Chapter III, "Nutrition," for a description of the Administration on
removal of this restriction.
Aging's Meals-on-Wheels program.
18
19
Care of the Senate Special Committee on Aging uncovered
evidence that poor welfare patients received segregated,
poor care and less attention than other elderly patients.
Congress, however, has not proposed any legislation to deal
with this situation.
Improved licensing and inspection
The Social Security Amendment of 1967 required the
licensing of all nursing home administrators and made
them accountable for all activity in the home. In the same
Chapter III
year, the Moss Amendment specified that nursing homes
should have a registered nurse on duty for one eight-hour
shift, and a licensed practical nurse on duty for another
NUTRITION
eight-hour shift. Now, too, HEW regulations require short-
notice inspections by medical review teams to determine
the adequacy of services. In a speech at Nashua, New
Hampshire on August 6, 1971, in which he outlined an
eight-point program on nursing home reforms, President
Nixon ordered the expansion of the Federal program for
training State nursing home inspectors so that an additional
2,000 inspectors will be trained by about the end of 1972.
On Federal funding for long-term care
SAL
Of the $2.5 billion spent on nursing home care, Medicare
provides $500 million and Medicaid $1.3 billion-or two-
thirds of the entire expenditure. The Administration,
however, has recommended cutting the program by $235
million in 1970 and $444 million in 1971.
CEREAL
20
21
CHAPTER III: NUTRITION
Having grown up long before the relatively new science of
nutrition established itself, many older persons know very little
about proper diet. The many physiological and emotional changes
that accompany aging alter eating habits. In addition, as Dr.
Charles Becker noted at a 1958 Seminar on Aging at Aspen,
Colorado: "Not infrequently, the older person living alone just
does not bother to prepare a satisfactory diet because of boredom
and failure to make the effort."
The 1961 White House Conference's recommendations on
nutrition dealt, in general, with services and education. In the
services area, delegates proposed a community mobile food plan
as well as remedial programs to overcome malnutrition and
inadequate hydration. The Conference also recommended infor-
mation programs that stress proper nutrition for the aging. The
entire Conference yielded only one proposal on consumer pro-
tection, a rather general one on deceptive advertising and pack-
aging, reflecting the low "profile" of consumerism a decade ago.
Developments Since 1961
The Food Stamp Act of 1964 made it possible for the poor
to buy stamps at less than face value and redeem them for
domestic goods. Of the 9.5 million persons registered currently
for food stamps, 1.5 million (11 percent) are 65 or older. (The
Department of Agriculture's Commodities Distribution or Don-
able Foods Program, which dates back to the Depression, feeds
an estimated 500,000 more elderly persons.) The Department
of Agriculture has also run food education programs in coopera-
tion with the Administration on Aging, an agency created by the
Older Americans Act of 1965.
The experimental nutrition program of the AoA includes
provision for group dining and "Meals on Wheels." Recent
changes in the Food Stamp program now make it possible to use
stamps for Meals on Wheels, but not for group dining.
The group dining project offers meals to the elderly in a
cafeteria-like setting that encourages social contact. A non-profit
agency, sometimes enlisting the help of elderly persons them-
selves, usually supplies the meals and uses its own or some other
center to serve them. Agencies in Boston, for example, use school
facilities after hours, and the State of Massachusetts finances
the program. The service provides one hot meal a day at a cost
of 50 cents, with eligibility based on age and income. For the
23
ness Bureaus has set in motion a self-regulatory mechanism called
same price, Meals on Wheels volunteers deliver a hot meal to
a National Advertising Review Board.
shut-ins and remain while it is being eaten. Together, group
dining and Meals on Wheels provide a daily meal to thousands
In response to the growing challenge of consumer problems,
of older Americans.
the Associations have established a consumer information pro-
gram for their members. The main elements of the program are:
The AoA has completed 31 food projects. The direction in
which the food program will now go is uncertain. In most in-
Consumer workshops held in conjunction with area or
stances individual communities conducted the projects on a local
regional conferences, as well as State and local meetings.
basis without tying them to other services. One of two approaches
Experimental consumer information desks manned by
that Congress is considering at the present time would extend
members to respond to problems raised by consumers in
this single-project strategy into a nationwide meals program.
different parts of the country.
On the basis of other AoA projects in Illinois and Florida, how-
Active participation in the consumer community, including
ever, Congress is also weighing a very different approach that
representation on the White House Council for Consumer
would treat meal delivery as an integral part of a broad package
Affairs.
of services that health, welfare and education agencies would
provide in local areas.
Articles on consumer problems in NRTA-AARP publica-
tions.
The Department of Agriculture's Expanded Food and Nutri-
Commenting on consumer issues, the Senate Special Commit-
tion Education Program (EFNEP) provides homemaker services
tee on Aging observed recently: "The Administration on Aging
to poor, minority group homemakers, many of whom are elderly.
should give some thought to convening
a multi-agency work-
Aides trained in food and nutrition, and working under the
shop on consumer problems similar to that conducted on trans-
supervision of an extension home economist, render these
portation in 1970. Special efforts, however, should be made to
services. Since its inception in November, 1968, the program has
assure adequate consumer representation at any such meeting."
helped 842,000 families, most of them in urban areas.
In 1969, the White House Conference on Food, Nutrition and
Health recommended "permanent funding of programs of daily
meal delivery service." The proposal, however, has yet to be
realized. Although the 1969 Conference has produced joint action
by the government and the food industry to disseminate infor-
mation on nutrition, its general impact has been limited.
As evidence of its own commitment to improved nutrition for
the elderly, the NRTA-AARP Pharmacy Service supplies mem-
bers with appropriate vitamin and mineral supplements at rea-
sonable prices. In addition, the Associations provide a hot meal
in their Late-Start and other service groups.
The question of nutrition, however, transcends the availability
of food. Recent studies by various consumer advocates, coupled
with several tragic examples of food contamination, have pro-
pelled food safety into the forefront of the nation's consciousness.
Both the Food and Drug Administration and the Federal Trade
Commission have adopted more stringent regulatory policies with
respect to food packaging and deceptive advertising claims.
Within the business community, the new Council of Better Busi-
24
25
Chapter IV
HOUSING AND
ENVIRONMENT
I
27
CHAPTER IV: HOUSING AND ENVIRONMENT
During a Roundtable Conference on Human Needs in Housing
held in Topeka, Kansas in 1964, Wilma Donahue, then Director
of the University of Michigan's Institute of Gerontology, noted
that the aged constituted the fastest growing population in
the United States, and called attention to their special housing
problems.
"One of the things which I view with great concern," said Dr.
Donahue, "is the fact that these elderly people cannot indulge
their preferences. For the most part, we are providing a mini-
mum of space for their housing. Perhaps we are providing the
most old people can pay for. But this means, usually, a very small
uncomplex room, really a box, without a thing to break the
monotony of four walls and a ceiling."
The sheer numerical weight of the recommendations on
housing adopted at the 1961 White House Conference-90 actual
proposals, or 21 as defined in the NRTA-AARP Consolidated
Inventory-left no doubt how the delegates felt about the place
of housing on the action agenda for the aged.
The main emphasis of the 1961 Conference's recommenda-
tions on housing was to increase the nation's housing supply, to
incorporate design elements that would reflect the needs of the
elderly for special community support services, and to provide
for the widest possible range of residential choice. To reach these
goals, the Conference called for the expansion and liberalization
of various Federal programs, particularly public housing, mort-
gage insurance and long-term loans, and the direct-loan program.
Developments Since 1961
Despite the many housing programs developed over the past
decade, the nation has failed to increase significantly the rate at
which new housing is built for the elderly or any other population
group. The 336,000 Federally assisted units constructed for the
elderly in 10 years have not even kept pace with the population
growth of older America-an estimated increase from 16 million
in 1960 to 20 million in 1970.
The under financed and largely dormant rent supplement pro-
gram, which was created in 1965, has served only 4,200 elderly
families. The mortgage insurance and long-term loan programs
of the Federal government, coupled with the direct loan program
for rental housing for the elderly and handicapped, have gener-
ated only 100,000 units for the elderly in 10 years.
29
The direct loan program (Section 202) permitted nonprofit
clined to about 6 million units. But the 'toilet-seat' counting
sponsors to obtain low-interest loans to build housing for the
approach
does not tell us why the housing consumer remains
elderly and handicapped. Despite its success, the Federal Hous-
dissatisfied and why the present urban housing supply continues
ing Administration phased it out in 1969 in favor of an interest
to deteriorate. Nor do such mechanical criteria provide any
subsidy program (Section 236) which requires sponsors to go
insight into the impact of poor maintenance, poverty, soaring
to the private money market for capital. This program produced
operating costs, misuse and the ever escalating war between
slightly less than 10,000 units for the elderly in 1969 and 1970,
tenants and landlords."
and has suffered from lack of financing. The FHA mortgage
insurance program to finance the construction or rehabilitation
Isler urges more attention to the existing housing stock
of multi-family housing for the elderly or the handicapped (Sec-
through the improvement of basic housing services, including one
tion 231) provides nonprofit sponsors with 100 percent financing
that vitally affects older Americans-security. Without neglect-
and limits profit-making institutions to 90 percent. This pro-
ing the need for new construction, Isler says that the nation
gram, which absorbed an earlier mortgage insurance program
must develop new management institutions, including a new
(Section 207), experienced many foreclosures and failures and
cadre of professional housing managers, and create subsidy pro-
is now being phased out. Together, Sections 207 and 231 have
grams tied to services to "provide an economic basis for expanded
produced only 43,657 units in 10 years.
housing choice." The increasing abandonment of many struc-
turally sound dwellings would seem to underscore the impor-
While the Federal government has provided incentives for
tance of housing management.
construction of housing for the elderly by associations and other
nonprofit sponsors, it is not now encouraging private builders
Noting the decline of housing maintenance throughout the
who are willing to invest capital to serve this important sub-
country, Bernard Nash, Executive Director of NRTA-AARP,
market. By contrast, the government of Denmark, for example,
recently proposed the creating of a housing maintenance corps
requires that any housing development, constructed either under
made up of retired artisans and craftsmen. In testimony before
government or private auspices, reserve 10 percent of the total
a Subcommittee of the House Education and Labor Committee
number of dwelling units for the aging.
chaired by Congressman Brademas of Indiana, Nash advanced
Another problem, in the judgment of the Senate Special Com-
the idea that such a corps could be particularly useful to elderly
mittee on Aging, is "how many older Americans need what kind
widows who are unable to make simple repairs themselves.
of housing?' The Committee points out that answers to this
The Model Cities program, which was established in 1966,
question are complicated by the sparsity and unreliability of
was a recognition that physical "blight" is but one measure of
present data concerning the housing needs of the aged.
the housing problem and that housing cannot be divorced from
Other students of the housing problem question the nation's
programs to improve the social environment in poor neighbor-
apparent preoccupation with housing construction itself, includ-
hoods. (The urban renewal program had failed conspicuously to
ing the kind of data the 1961 Conference relied on as the basis
make the connection between physical and social needs.) The
for many of its recommendations. Morton L. Isler, Director of
Senate Special Committee on Aging, however, has found "uncer-
Housing for the Urban Institute, observes, for example, that
tainty of commitment" in the Model Cities program, and most
building new housing is no longer the definitive answer to the
experts agree that it has paid insufficient attention to the needs
housing problem.
of the elderly who represent a large part of inner city populations.
"Since 1950 we have built more than 30 million units and the
The Housing Act of 1970 endorsed rental congregate housing
present inventory is approaching the 70 million mark," says Isler,
for the elderly under both public and private sponsorship. Such
whose department serves, in effect, as the policy research arm
housing may contain community kitchens, common dining areas
of the Department of Housing and Urban Development. "Of
and other shared facilities. Nevertheless, the Senate Special Com-
these dwelling units the number classified (by the U.S. Census)
mittee on Aging has deplored the Federal government's small
as structurally deficient or without adequate plumbing has de-
* Housing Services: The Neglected Dimension, CITY, Summer 1971, p. 30.
30
31
investment in housing research and has asked that a higher
priority be given to planning and design for the elderly.
The expiration date for Congressional authorization of key
housing programs is June 30, 1972, and one of many new legis-
lative proposals would employ the device of community develop-
ment block grants to fund all of HUD's physical development
programs. There are those who believe, however, that the elderly
will not benefit from this approach.
One major problem that still persists is the inhibiting effect
Chapter V
of spiralling property taxes on the ability of elderly homeowners
to maintain their properties. A research report prepared for the
National Commission on Urban Problems in 1968 noted that
TRANSPORTATION
property taxes burden the poor more than the wealthy and tend
to discourage both proper maintenance of existing housing and
new construction. Since the property tax remains the fiscal bul-
wark of hard-pressed local governments, little progress has been
made to provide elderly homeowners with tax relief. Senator
Walter Mondale, however, has considered the idea of having the
Federal government subsidize local tax relief programs. In many
instances, elderly persons have spent more on taxes and upkeep
than on the original mortgage.
32
33
CHAPTER V: TRANSPORTATION
Reginald Marsh, former British Minister of Transport, once
asked: "What shall it profit a man if he gains two cars and
finds it quicker to walk?"
Despite Mr. Marsh's implication that the mobility provided
by our automobile-oriented age is a phantom one, many indi-
viduals apparently do find an advantage, however illusory, in
owning two or even three cars. They remain undeterred in their
reliance on the auto despite the large amounts of space required
for its temporary storage and its negative environmental impacts.
Public transportation, by taking a back seat to the automobile,
has compounded the already difficult problems of mobility for
the aged. A Brookings Institution analysis shows that the $8
billion budget planned for transportation in fiscal 1971 allocated
58 percent to highways, 21 percent to aviation, 17 percent to
water and 4 percent to everything else.* Various public opinion
surveys have shown, too, that public transportation occupies a
place far down on the average citizen's list of active concerns.
Moreover, public transportation has taken on the same connota-
tions as public housing, being associated largely with the poor,
the infirm and the elderly.
In 1961, however, transportation did not loom large as a
problem at the first White House Conference on Aging. The
delegates confined their recommendations to the idea of making
transportation available so that the elderly could maintain con-
tacts with friends, community services and the church. By con-
trast, the 1971 Conference is devoting one entire "needs" section
to transportation.
In a speech to the National Conference on Social Welfare at
Dallas in May, 1971, Richard Andryshak of the Urban Mass
Transportation Administration (UMTA) spelled out why trans-
portation has become a major concern of the elderly.
"It is a physical problem in that many older persons do have
physical limitations in their ability to walk, climb, stand, see,
hear and open doors," Andryshak said. "It is an economic prob-
lem in that over half of the persons over 65 live in poverty or
'near' poverty. It is a service problem because present transit
systems do not provide access to all the places one needs to go
to.
Transit systems are designed for the work trip and the
school trip, not to the patterns of the elderly."
* Setting National Priorities: The 1971 Budget, C. Schultze, E. Hamilton
and A. Shick, Washington, D. C.
35
Developments Since 1961
attempt to gather data on the mobility of the nation's over-65
At least fifty communities across the country have adopted
population.
reduced-fare programs for the elderly. Although these experi-
In October, 1970, President Nixon signed into law the Urban
ments have helped older riders, some question remains about their
Mass Transportation Assistance Act of 1970. The measure con-
effect on system revenues and operations.
tains a provision calling for special consideration to the needs
The Administration on Aging has undertaken more than 300
of the aged and infirm in the planning, design and operation of
projects with a transportation component, mostly to meet special-
urban transportation services.
ized needs such as bus travel for elderly volunteer workers. In
One month prior to its signing, a consortium of four firms,
some instances, however, the AoA has used its funds to provide
under contract to UMTA, completed an eighteen-month study of
low-cost transportation to help the elderly to participate more
center city transportation needs in five medium sized cities.
fully in various services and programs.
Although the study was not specifically addressed to the needs of
The Department of Transportation has sponsored the "dial
the aging, its strong emphasis on public transportation improve-
a bus" concept. The elderly person in need of transportation
ments, including proposals to intercept autos on approaches to
phones in his location and destination, and the bus driver, con-
the center city and direct them to peripheral parking terminals,
tacted by radio, picks up the passenger within minutes of the call.
was designed to benefit all groups dependent on public transpor-
tation. The Urban Mass Transportation Administration has yet
The transportation needs of the elderly are subtle and com-
to act on most of the demonstration projects proposed.
plex, and the planned $1.3 billion Bay Area Rapid Transit System
(BART) in San Francisco reflects an awareness of this. It will
In line with the 1970 Mass Transportation Act, however, the
include the following special provisions for the elderly:
Department of Transportation has recently been encouraging
research and demonstration programs on the transportation
Elevators equipped with telephone and controls within easy
access of the elderly.
reach of wheelchairs to help move the handicapped or feeble
vertically from street to platform.
Various public officials and transportation planners have
recommended using the Highway Trust Fund for public trans-
Restrooms with special design features, including doors
portation improvements and not limiting its use to highway im-
wide enough for wheelchairs.
provements. Senator Edward Kennedy has introduced such a
Stairways in stations with handrails on both sides extend-
proposal in Congress.
ing 18 inches beyond top and bottom steps.
Wheelchair occupants will be able to ride easily over the
gap between train platform and car floor, pass through the
door and move from one end of the car to another.
A loudspeaker system and highly visible signs to aid those
with impaired hearing or vision.
Special service gates and fare collection machines.
Closed circuit TV, special directional signs and low place-
ment of public telephones and elevator buttons.
In May, 1970, in response to a proposal made by the Presi-
dent's Task Force on Aging, the Department of Transportation,
UMTA, AoA, HEW and HUD participated in an interdisciplinary
conference on transportation. Conducted by the Brooklyn Poly-
technic Institute, the Conference represented the first systematic
36
37
Chapter VI
EMPLOYMENT AND
RETIREMENT
III
IIII
39
CHAPTER VI: EMPLOYMENT AND RETIREMENT
In the introduction to its 1970 report, the President's Task
Force on Aging observed: "Some Americans accept the elderly
and respect them; some Americans fear the implications of aging
and, therefore, shun the elderly; most Americans are indifferent
to the elderly. They forget that life continues after the age of
65, that life's possibilities remain, that some of life's concerns
intensify. In a production-oriented society, excuses abound for
neglecting the elderly; measures for enriching the later years
or to compensate for the vulnerability of the aged are accorded
a low priority, are delayed, are enacted on too small a scale,
or are not proposed at all."
Meeting at a time when older workers were heavily repre-
sented among the long-term unemployed, the 1961 Conference
keyed its recommendations to the need for increasing job oppor-
tunities for persons over 45, providing counseling and placement
services for older workers, gathering facts about age discrimina-
tion and promoting increased earning opportunities for the aged
through service programs.
Developments Since 1961
As noted earlier, Congress reduced the eligibility age for
Social Security from 65 to 62 shortly after the 1961 Conference.
In 1962 the Federal government began to shape a national
manpower policy that was to become strongly linked with the
"war on poverty." In an effort to counteract the impact of
modern technology and the effect of the changing job require-
ments of American industry on those with low skills, Congress
passed the Manpower Development and Training Act of 1962.
Although the Act was not aimed specifically at any one group,
legislators felt that its provisions for training and retraining
would benefit middle-aged and older workers.
Despite its laudable objectives, the effectiveness of MDTA
was limited in its early years. Criticism of the program usually
centered on the charge that too often men were trained for
nonexistent jobs. In addition, critics maintained that the pro-
gram tended to emphasize the needs of youth and to neglect the
underemployed and such "forgotten" groups as the unemployed
older worker, in addition to overlooking compensatory education,
supportive services, and corollary strategies for generating
new jobs.
In 1966, Amendments to MDTA directed the Secretary of
41
Labor to provide, at appropriate times, a special program of
and VISTA. This move has aroused the concern of many pro-
testing, counseling, selection and referral of persons 45 and older
fessionals in the aging field who feel that these successful pro-
for occupational training or further schooling. At the present
grams may lose their identity as programs for the elderly.
time, however, only one out of ten participants in training pro-
grams is 45 or older.
As part of their contribution to service programs for the
aging, NRTA-AARP have sponsored the Senior Community
In 1967, Congress passed the Age Discrimination in Employ-
Aides Project under a grant from the Department of Labor,
ment Act. The measure, which became effective in June, 1968,
and Project Late Start under a grant from the Office of Economic
sought to bar age discrimination against workers between the
Opportunity.
ages of 40 and 64. By the end of 1970, however, only 15 cases
involving age discrimination had been processed in the courts,
The Associations conducted the Senior Community Aides
and many subtle forms of bias persist. Moreover, the Act still
Project, a part of the Department of Labor's Operation Main-
leaves unsettled the problem of mandatory retirement that many
stream, as a demonstration program in six large cities. As of Sep-
workers face at 65. Now, the issue becomes more acute as
tember, 1971, more than 25 percent of the 806 poor persons over
eligibility for retirement occurs at ages below 65.
55 recruited for the project had gone through on-the-job training
and had been placed in permanent jobs. This suggests that there
Service Programs
is a large reservoir of dependable and capable persons among
One of the most encouraging developments has been the emer-
the poor, aging group. The Associations went beyond their con-
gence of several service programs that offer the aging either
tractual commitment to the Manpower Administration of the
part-time employment or psychologically rewarding volunteer
U. S. Department of Labor by setting up a free employment
opportunities.*
service for elderly persons not eligible for the program. One of
the most significant findings in the Late Start project for OEO
The Foster Grandparents Program, for example, offers low-
was the low composite dropout and absenteeism rate of the
income persons of 60 or older a chance to work with dependent,
elderly participants in the four study cities.
neglected or culturally handicapped children. In its five years of
existence, the program's projects have increased from 21 to 68,
In Long Beach, California, the Associations sponsored the
and its geographical reach now extends to 40 States and Puerto
OEO's Project WORK (Wanted: Older Residents with Know-
Rico. It now serves children in a wide range of settings, includ-
how). In addition, NRTA-AARP have sponsored Mature Temps,
ing Head Start classrooms, reform schools, day care centers and
Inc., an employment agency for older workers seeking temporary
mental health clinics. Each year, about 5,400 elderly participants
jobs.
serve 22,000 children.
Despite the variety of actions taken since 1961, many authori-
Although it was not funded until 1971, the Retired Senior
ties on aging have expressed mounting concern about the employ-
Volunteers Program (RSVP), one of the major innovations in
ment and retirement needs of older workers. The President's
the 1969 amendments to the Older Americans Act, offers volun-
Task Force on Aging has noted, for example, that "most pre-
teer service opportunities to persons of 60 and over. Participants
retirement 'plans,' 'courses' or 'counseling' are
geared
to
those
receive reimbursements for meals, travel and other out-of-pocket
who are about to retire
and tend to ignore the middle-aged
expenses. During Congressional hearings in 1969, RSVP drew
worker." In its 1970 Annual Report, the Senate Special Com-
enthusiastic support from witnesses, some of whom testified that
mittee on Aging stressed the need to safeguard the retirement
as many as one million persons would be willing to serve as
income of workers made jobless by plant shut-downs, and also
volunteers nationally.
called for prompt action to increase Railroad Retirement and
Recently, the Federal government transferred the Foster
Civil Service pension benefits. In addition, it recommended the
Grandparents Program and RSVP from the AoA to ACTION,
establishment of an Institute on Retirement Income.
a new agency which is now also responsible for the Peace Corps
Even these measures, however, do not exhaust the actions
* See Chapter VIII, "Retirement Roles and Activities."
needed now. Periodic retraining, second careers, and the need
42
43
for paid volunteers in service agencies all loom large on the
agenda for the aging. In some other Western nations, private
industrial firms have established nursing homes for retired
employees.
Chapter VII
EDUCATION
44
45
CHAPTER VII: EDUCATION
"It is always in season for old men to learn," said Aeschylus,
who lived and wrote until he was 81. And the general theme of
the 10 consolidated recommendations on education at the 1961
White House Conference was that continuing education in a
variety of settings be readily available to the elderly. The dele-
gates also stressed the need for training in practical as well as
academic subjects.
Developments Since 1961
In 1966, Congress passed the Adult Education Act, creating
the Adult Basic Education Program. The Federal government
finances 90 percent of the program; the States fund 10 percent
of the program and also administer it, mainly in the public
schools. All persons 16 and over are eligible for instruction in
subjects through the 12th grade level, including the 3 R's, speech
and verbal comprehension.
Although 479,912 students enrolled in adult education courses
in 1969, only 13,210 (2.7 percent) were 65 and over. Significantly,
two-thirds of Americans over 65 have had no schooling beyond
the 8th grade, and one out of five cannot read or write well
enough to deal competently with the complexities of modern life.
Each new generation of retired persons is changing, however,
and demands for educational opportunities are expected to
increase.
Apathy on the part of the aging may only partly explain
their present lack of participation in adult education programs.
No unit of the Federal government provides guidance or leader-
ship in that field, and only one State Department of Education
(New York's) has a section devoted exclusively to adult educa-
tion. Moreover, few universities are carrying out research in
this area.
A 1966 study by John C. Johnstone and Ramon J. Rivera,
however, did offer data to suggest that an informal setting may
be conducive to greater participation by the elderly in education.*
Only 7 percent of the aging respondents in the Johnstone-Rivera
study mentioned school as the place of their most recent instruc-
tion. Far higher proportions of the respondents mentioned the
facilities of community, religious and business organizations.
Among several encouraging developments in recent years is
*
Volunteers for Learning, Aldine Publishing Company, Chicago, 1965.
47
the growing number and scope of community colleges whose
budgets provide for community services and adult education.
Television, mobile learning laboratories and other modern tech-
niques are also reaching the elderly in nursing homes or isolated
areas.
Unfortunately, most adult education is geared largely to
educated middle and upper-class groups. One way to increase the
Chapter VIII
participation of the less affluent may be to provide practical
courses concerned with daily living-instruction, for example, in
consumer problems, employment opportunities and taxation. In
RETIREMENT ROLES
its 1970 report, the President's Task Force on Aging recom-
mended that the Department of Education and the AoA work
AND ACTIVITIES
together to set up a new program that would conduct research
and offer local communities technical assistance on "education
for continued living."
NRTA-AARP's own commitment to adult education is evi-
dent in its Institute of Lifetime Learning, Health Education
program and Defensive Driving Course.
The Institute of Lifetime Learning, a nonprofit, nonpolitical
program, offers continuing education adapted to the needs and
interests of the mature person. The courses, which are taught at
Institute centers throughout the country, involve no examina-
tions, grades or assignments. Subjects include the Humanities,
Social Sciences and Arts and Crafts. The Health Education pro-
gram, a new NRTA-AARP effort that will rely on trained volun-
teers, is designed to create an awareness of good health practices.
The Defensive Driving Course, which was developed by the
National Safety Council, seeks to improve traffic safety by im-
proving or refining the driving habits of the older driver. Older
persons who have volunteered and received special training serve
as instructors. More than 40,000 persons over 65 have already
completed the course.
48
49
CHAPTER VIII: RETIREMENT ROLES AND
ACTIVITIES
In his classic study of 19th century America, Democracy in
America, de Tocqueville noted that the widespread use of volun-
tary associations, particularly community betterment activities,
was one of the most typical aspects of American life.
Many experts have expressed the belief that of all age groups,
the retired represent the greatest potential reservoir of volunteer
skills. Others have pointed out that the recruitment of volunteers
is expensive, and requires mobility and other attributes not
normally associated with the older person.
Although the 1961 Conference did not include a section
specifically designated as "Retirement Roles and Activities," it
produced, nevertheless, 38 statements and recommendations
whose main thrust was to make volunteerism the core of a
revitalized role for the retired.
Developments Since 1961
Agencies and organizations such as the United Fund Cam-
paign, the Department of Agriculture, the Veterans Administra-
tion and the American Red Cross have used volunteers exten-
sively for many years. It was not until the Sixties, however, that
sustained efforts took place to expand voluntary participation
among the elderly.
In March, 1961, the government initiated the Peace Corps,
recruiting and training volunteers of all ages to work in poor
and underdeveloped nations for nothing but a modest living
allowance. Although the program recruited few older persons
in its earlier years-in 1966, for example, only 12 Peace Corps
members were over 70-it is now seeking to widen participation
by the elderly.
The creation of the Office of Economic Opportunity in 1964
expanded the new type of quasi-volunteer activity represented
by the Peace Corps. Recognizing that the elderly, like other
segments of the poor, could not find gainful employment without
help, the OEO developed a number of experimental programs
to achieve this goal step by step.
The development of such programs has been uneven, however.
During hearings held in 1965, the Senate Special Committee on
Aging heard testimony that the OEO had not brought to its pro-
grams for the aging the same zeal it had displayed in behalf of
51
poor unemployed youth and racial minorities. The hearings led
volunteer activity of all kinds. The largest and one of the most
to the creation within OEO of a permanent program division for
successful programs using elderly volunteers has been Project
older persons.
SERVE sponsored by the Community Service Society in New
Later in 1965, the Older Americans Act created AoA. The
York City. Initiated in 1967 at Willowbrook State School, the
agency cooperated with other Federal departments to foster in-
project presently involves 564 volunteers who serve more than
creased volunteer and quasi-volunteer activity. More than 40,000
20 agencies in Staten Island. Other elderly volunteers have served
elderly persons have participated in 625 AoA-funded projects
on the boards of organizations, as neighborhood information and
involving volunteer work in a broad spectrum of community
referral contacts, hostesses to the needy and in many other roles.
services. In addition, an estimated 100,000 older Americans have
The Senate Special Committee on Aging has observed that
participated in volunteer work in the many senior citizen centers
with the proper motivation, organization and support, the number
financed, in part, by AoA.*
of elderly volunteers could reach four to five million. Most
In 1966, elderly volunteers participated in Medicare Alert,
experts agree that greater clarity will be needed about the kinds
an emergency effort to register aging Americans in the Medicare
of work to be performed and the forms of organization and
program. The authorization of RSVP (Retired Senior Volunteer
operating modes most congenial to volunteerism.
Program) in 1969 brought to fruition an effort that began in
One potential deterrent to expanding volunteer work and new
1961 to provide the elderly with a broad range of volunteer
service roles for the aged is the tendency to pigeonhole persons
activity.
according to characteristics associated with age. This has the
On the nongovernmental level, efforts to stimulate the growth
effect of reducing the common human problems of generations
of volunteerism have come from voluntary organizations at the
and magnifying the differences.
national and local level, trade unions and a few business firms.
Some young persons, for example, tend to think of the elderly
The present Administration has placed great stress on volun-
as passive, surly and unfriendly. (Indeed, some segments of
teerism as a source of talent and as a way of life. In 1969, while
youth have summed up their feelings about older generations in
laying the groundwork for a new Federal Office of Voluntary
the slogan: "Don't trust anyone over thirty.")
Action, President Nixon encouraged a group of national leaders
Unfortunately, some older persons have adopted similarly
to create a parallel agency in the private sector. This agency, The
stereotyped views of the young, associating long hair, for ex-
National Center for Voluntary Action, will serve as a public
ample, with revolutionary political activitists and hippies.
foundation. Its aim will be "to step up the delivery of volunteer
The irony is that the young and the aging may have a great
services and to increase the positive effects of volunteerism in
deal in common. As Vermont Royster, the former Editor of the
this country."
Wall Street Journal observed when he retired last year: "The
In an effort to promote widescale preretirement planning
idea that it's only the young who are not sure what to do with
among the 20 million Americans between the age of 50 and 65,
their lives is an illusion of youth." An increasing number of
AARP has established a new division, Action for Independent
young persons have either rejected the values of an acquisitive
Maturity. Members of AIM receive Dynamic Maturity, a maga-
society, or are deeply suspicious of what they regard as its failure
zine carrying useful information on volunteer activities, second
to provide useful and honorable work. Increasing numbers of
careers, use of leisure time, financial planning, health and hous-
the aged, too, are searching for opportunities to lend meaning
ing, and participation in other AARP services. Through a field
to their later years.
organization of volunteers, AARP offers preretirement planning
programs to community groups, industries and institutions.
An estimated one million older Americans now participate in
non-church volunteer work, and about 1.5 million are active in
* See Chapter XI, "Facilities, Programs and Services."
52
53
Chapter IX
SPIRITUAL WELL-BEING
55
CHAPTER IX: SPIRITUAL WELL-BEING
In his poem, Sailing to Byzantium, William Butler Yeats
wrote:
"An aged man is but a paltry thing,
A tattered coat upon a stick, unless
Soul clap its hands and sing, and louder sing
For every tatter in its mortal dress."
Although the above verse is susceptible to different interpre-
tations, at its simplest level it says that no man, however old he
may be, loses his human worth if he accepts his own self as the
very condition of his being and still retains his appetite for life.
As many professionals in the aging field have noted, this is
not an easy task in a society that has glorified youth, largely
ignored the aged, and affirmed the oldfashioned virtues of indi-
vidualism, competitiveness and thrift-even when, in actuality,
it dotes on "teamwork," fosters monopolistic practices and en-
courages waste.
Many elderly persons grew up at a time when spiritual suste-
nance was closely identified with organized religion, and they
are still more likely to turn to ministers, priests and rabbis than
to such secular surrogates as the psychiatrist, the social worker
and the teacher.
The delegates to the 1961 Conference adopted four consoli-
dated recommendations on the role of religion in the life of the
aged, the role of the older person in the congregation, and the
role of the congregation and the clergy in affecting attitudes
towards the aged.
Developments Since 1961
It is difficult to cite any particular events as direct or indirect
outcomes of those proposals. By its very nature, spiritual well-
being is a phenomenon that defies measurement or evaluation.
Despite almost universal acceptance of the role of religion in
the life of the older person, the principle of separation of church
and state in our pluralistic society discourages the enactment
of legislation in the area of the spiritual.
The Federal government, however, has provided for chaplain-
cies in the armed forces, prisons and Veterans Hospitals. Further-
more, it has actively encouraged church organizations in their
programs for the aging. Throughout the country, church groups
have demonstrated that they represent one of the best available
57
vehicles for service programs. In the sphere of housing, for ex-
ample, Satellite Senior Homes of Oakland, California, an inter-
faith organization whose members include 7 Protestant churches,
2 Catholic churches and the Jewish Welfare Federation, is pro-
viding low-income older persons with low-cost housing and social
PART TWO:
services through a comprehensive plan of satellite housing
projects. Beyond physical facilities, the church is involved with
retirement preparation for clergymen and nuns, the volunteer
NEEDS-MEETING MECHANISMS
role of visitors at senior citizen centers and congregate facilities,
and the basic task of trying to shape new attitudes towards the
Chapter X
aging process.
PLANNING
58
59
CHAPTER X: PLANNING
"Planning, like life," Harold Orlans once wrote, "is a harden-
ing of the heart to the uncertainties of fortune and the sharp
cutting edge of time."*
The 1961 White House Conference did not include a separate
section on the often elusive question of planning, but it did pro-
duce 22 proposals relevant to planning for the elderly which the
NRTA-AARP Inventory distilled into four basic recommenda-
tions. They concerned the organization and support require-
ments of national and state planning mechanisms;+ the similar
requirements for local areas; the data-gathering aspects of plan-
ning; and information and education.
Developments Since 1961
The consensus among experts in the aging field is that of all
the recommendations put forth at the 1961 Conference, those
that concerned planning have shown the least forward move-
ment. In suggesting the possible reasons for this, John Martin,
AoA Commissioner, told a technical committee of the 1971 Con-
ference: "Planning agencies have little authority; they are short
of funds and low in prestige. This sums up a poverty of resources
for initiating actions."
A Task Force appointed by President Lyndon Johnson in
1967 concluded that the Federal government had not provided
effective planning for the aged, and that planning efforts by the
states were disappointing. President Nixon's Task Force struck
a similar note. At the Federal level, it found fragmentation of
responsibility, duplication, jurisdictional conflicts, and lack of
clear accountability for actions-but no mechanism for accom-
modating or resolving those conflicts and problems. Its 1970
report says:
"The task force recognizes that in enacting the Older Ameri-
cans Act, Congress intended the Administration on Aging to
serve as the focal point on aging. The experience of the Ad-
ministration on Aging during the last four years, however, makes
it abundantly clear that interdepartmental coordination cannot
be carried out by a unit of government which is subordinate to
the units it is attempting to coordinate."
The Task Force proposed the establishment of an Executive
Office on Aging, with Cabinet-level status, a proposal broadly
* Democracy and Social Planning, DISSENT, Spring, 1954.
+ See also Chapter XIV, "Government and Non-Government Organization."
61
consistent, at least, with the 1961 Conference's call for a central
Perhaps the most basic problem is that planning has yet to
organization with high visibility, adequate power and prestige.
be defined sharply. Some tend to view it as a technique, but
The Task Force proposed that the new office assume responsibility
planning severed from action or a will to act becomes mean-
for developing a national policy on aging; oversee planning and
ingless. Others tend to speak of short-range and long-range
evaluation by the Federal government; recommend priorities to
planning as though they are either-or propositions. Both are
the President; and encourage research and manpower prepara-
necessary if American society is to cope with a pattern of age
tion by Federal agencies. To underline the importance of this
distribution that is now reaching crisis proportions.
recommendation, the President's Task Force ranked it number
one in its list of 24 recommendations.
On October 13, 1971, Dr. Arthur S. Flemming, Chairman of
the 1971 White House Conference on Aging, announced that
President Nixon had established a Cabinet-level Committee on
Aging within the Domestic Council. Chaired by HEW Secretary
Elliot Richardson, the Committee includes the Secretaries of
Agriculture, Commerce, Labor, HUD and Transportation, the
Director of the Office of Management and Budget, and Dr. Flem-
ming. The Directors of ACTION and the Office of Economic
Opportunity and a Presidential special assistant were named as
consultants to the Committee. Charged with the responsibility
of recommending to the President the "formulation and coordi-
nation of all Federal policies for improving the quality of life,
dignity and productivity of the nation's older people," the Com-
mittee may become the policy and planning vehicle long urged by
aging experts to ensure effective coordination and implementa-
tion of programs affecting the elderly.
Given the realities of the Federal system, however, many
observers question whether any single organizational device can
realize planning goals for the aged. Although Congress, for
example, does not have an explicit leadership role in planning
for the aged, the Senate Special Committee on Aging, through
its surveys, reports and recommendations, has served as an im-
portant planning resource. (The House of Representatives has
yet to organize a Permanent Committee on Aging, and does not
look as though it intends to do so unless public pressures demand
it.)
There is general agreement that on State and local levels,
effective mechanisms for coordinating policies and programs are
even more conspicuously absent than they are at the Federal level.
Each national voluntary organization concentrates planning
activity on its own work. Although informal discussion among
voluntary agencies does take place, no formal mechanisms have
evolved for developing common positions.
62
63
Chapter XI
FACILITIES, PROGRAMS
AND SERVICES
BULLETINS
FLORAL
CERAMIC
GOLDEN AGE
CLUB
65
CHAPTER XI: FACILITIES, PROGRAMS
AND SERVICES
One of the most pervasive themes in the literature on the
aging process is the self-imposed isolation and withdrawal of
many older persons.
Of the 49 recommendations on Facilities, Programs and
Services adopted by the 1961 Conference, seven were designed
to increase opportunities for fellowship and social enrich-
ment among the elderly. The delegates stressed the need for
additional multipurpose senior centers. To that end, they called
for the provision of space in public housing and the use of
schools, churches, libraries and other community focal points
during off hours.
Developments Since 1961
Indeed, the most striking development since 1961 in the facili-
ties area has been the growth of senior citizen centers. Senior
citizen centers were not a new idea in 1961. A Senate Subcom-
mittee report published soon after the Conference said that the
centers represented "one of the fastest growing indigenous move-
ments in America." It credited their growth from 1959 to 1961,
in large measure, to increased State activities for the aged in
preparation for the 1961 White House Conference.
Actually, the Great Depression provided the original impetus
for formal attempts to bring the elderly together. The first senior
center, the Hodson Day Center, opened in New York City in
1943 in an abandoned Welfare Department storage building,
moved subsequently into another unused government building
and ultimately found a permanent home in 1962 as an integral
part of a low-income housing project. This improvisational
pattern of development also has marked the recent growth of
many other centers throughout the country.
The senior centers have retained a central place on the agenda
for the aging ever since the 1961 Conference. In 1965, the Older
Americans Act called for the establishment of new centers and
the expansion of existing ones to provide recreational activities
as well as information, counseling and referrals on health and
welfare problems.
An AoA survey conducted in 1968 and 1969 disclosed the
existence of nearly 1,300 centers in 49 states, the District of
Columbia and Puerto Rico (Mississippi was then the only state
67
without one). From 1966 through 1968, 960 new centers had
out how truly effective senior citizen centers are as a positive
opened-more than a fourfold increase since 1965 and a sixfold
replacement for family and primary group contacts.
increase since 1959.
Although a number of the 1961 recommendations have been
This growth largely reflected financial aid provided initially
realized to a large extent, successive cuts in the AoA's funds
by OEO and later by AoA. Information on operating expendi-
have raised serious questions about how many centers can con-
tures in 1969-the only year for which firm data are available-
tinue and, indeed, how many may have ceased to operate.
shows that AoA provided about 28 percent of the operating funds
for senior centers, with the remaining monies supplied through
Other Services and Programs
State and local taxes and voluntary contributions. On the basis
In addition to their recommendations on senior centers, the
of 1969 budget figures, NRTA-AARP staff estimate that between
delegates to the 1961 Conference urged the expansion of recrea-
$20 million to $21 million was spent on centers in that year.
tion, counseling, case work and legal services, information and
referral units and various home-centered programs.*
The rapid increase in the growth of senior centers tends to
obscure the fact that small ones have increased at a rate twice
The Sixties witnessed the growth of AoA-funded recreation
that of their large multi-purpose counterparts.
programs and services. In some instances, local public recreation
Although precise data are lacking, it would appear that only
departments operated senior centers. In addition, a number of
about one million persons-five percent of the total aged popu-
family service agencies set up departments on aging, and com-
lation-use the centers. The upper segment of the lower class
munity welfare councils established information and referral
and the lower and intermediate ranges of the middle class tend
desks to handle inquiries from the elderly and direct them to
to be the heaviest users. The centers have not proved to be a
appropriate agencies for help.
strong magnet for the poorest elderly persons, racial minorities
During the Sixties, too, notably through the efforts of the
and the affluent, nor do they seem to draw large numbers of the
OEO and voluntary agencies such as the Community Services
depressed, the isolated and the troubled. Some observers also
Society, the aging benefited increasingly from legal and protec-
contend that the centers are oriented largely to women's activi-
tive services. Recently, however, OEO's legal services suffered
ties and tend to discourage participation by elderly men.
large budgetary cuts.
At the same time, most professionals associated with senior
As in other functional areas involving the aging, however,
citizen centers can cite instances of how depressed elderly persons
these actions were fragmented. Promising demonstration or pilot
have changed remarkably as a result of center participation. One
programs were launched, but little or no effort was made to
director of a Midwestern center, for example, recalls a meeting
develop a comprehensive systems approach.
years ago with a 75-year-old man in the throes of an age-centered
As Chapter III noted, the 1961 Conference paid only scant
depression. The Director invited the man to visit his senior
attention to consumer protection, an issue that has since become
center. Today, at 85, the man regularly makes long-distance trips
a dominant national concern. In 1970, Congress enacted legis-
by himself in a camper and is playing a strong leadership role
lation designed to prevent the unsolicited issuance of credit cards.
at the center.
In the following year, it passed the Fair Credit Reporting Act,
Although the AoA survey makes it difficult to generalize about
which gives the consumer the legal right to obtain information
the quality of center programs, one finding with important im-
about himself on file at any credit bureau or credit reporting
plications for program quality was that only 432 of the 1,300
service. In 1971, also, the President issued an Executive Order
centers responding to the 1969 survey had a full-time director.
creating a Consumer Affairs Council within the Executive
Moreover, the majority of the centers are small, being located in
Branch. This agency is now actively involved in the Administra-
small towns, and do not provide a full range of services. Many
* For a discussion of other services recommended by the delegates-among
are no more than "drop-in" centers-places to sit, talk and meet
them mobile food service, rehabilitation centers and day hospitals. see the
others informally. Further research is needed, however, to find
appropriate chapters in the Needs section.
69
68
tion's current efforts to curb inflation through wage and price
controls. The programs being developed are likely to have an
impact on persons with fixed incomes.
Chapter XII
RESEARCH AND
DEMONSTRATION
70
71
CHAPTER XII: RESEARCH AND DEMONSTRATION
The 1961 Conference met at a time when the scale of the
Federal government's involvement in research and development
programs was rapidly increasing, and when more than one-half
of the research work contracted out to both industry and uni-
versities was directed toward the achievement of goals in "na-
tional defense" and space exploration.
The 1961 Conference produced 127 recommendations, which
the NRTA-AARP Inventory distilled into 15 sets of recommenda-
tions covering three categories: organization and support; bio-
medical research; and social and psychological research. Under-
lying all the proposals was the Conference's call for a central
national research institute to carry out stepped up programs of
research and demonstration on the problems of the elderly.
Developments Since 1961
Throughout the Sixties, as the nation expanded its commit-
ment in Southeast Asia, military research and development
accelerated. It has been argued that the growth of defense R&D,
by bidding up salaries and taking the cream of scientific and
engineering talent, may have tended to weaken the quality of
research in civilian laboratories. Others feel that there is no
assurance that aging research in itself would have received any
more attention or funds even if there had been no war in Vietnam.
The Federal government did, however, take a number of
important initiatives related to research and demonstration pro-
grams. In 1963, it set up an Adult Development and Aging
Branch within the National Institute of Child Health and Human
Development. In 1965, Congressional amendments to the Eco-
nomic Opportunity Act of 1964 led to programs for the elderly
poor. And in 1965, the fourth section or title of the Older
Americans Act specifically allocated funds for research and
demonstrations, although they have since been cut back.
Congressional hearings in 1967, 1969 and 1970 produced pro-
posals similar to the 1961 Conference's call for centralizing aging
research. In its 1970 report, the President's Task Force on Aging
also recommended additional money for research and training.*
The most recent proposals for centralizing aging research are
Senator Eagleton's bill (S. 887) for a National Institute of
Gerontology, and Senator Williams' bill (S. 1925), the Research
on Aging Act.
* See Chapter XIII, "Training."
73
A recent international conference on aging at Zurich raised
many questions about the social, economic and political impact
of increased longevity. The relatively recent Project Lifespan
Conference, held at Santa Barbara, California, under the auspices
of the Center for the Study of Democratic Institutions, elicited
one expert's forecast that direct experiments on postponing aging
(not death) will be possible in five years. Despite the obvious
need for increased research, however, only 0.2 percent of present
Federal outlays go to research on aging and the aged.
It is not simply a matter of Federal government conducting
Chapter XIII
research, however. In a report published in 1970, the President's
Task Force on Science Policy urged the Federal government to
TRAINING
make a greater effort to stimulate research and technological
innovation by private institutions, particularly in solving social,
urban and environmental problems. In an important section,
with thinly disguised references to the problems of converting
from a war economy to a peacetime one, and obvious allusions
to the aerospace industry, the report said: "Federal agencies
engaged in conducting or sponsoring research and development
activities should attempt to shape their policies with due attention
to their possible economic implications, particularly including the
transfer of technology from the immediate purposes of the
agencies to other purposes and goals of the civilian economy."
NRTA-AARP's own contribution to research has taken the
form of sponsoring technical papers by scholars on Social Secur-
ity amendments, housing for the elderly, private pension pro-
grams and national health insurance.
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CHAPTER XIII: TRAINING
Like the acute problems in research on aging that were
evident in 1961, the paucity of trained professionals and para-
professionals in the aging field posed another serious challenge
to the first White House Conference.
The delegates passed 72 recommendations-7 as reorganized
in the NRTA-AARP Inventory-focussing on training require-
ments, professional education and staff development.
Developments Since 1961
According to a 1968 survey, the Federal government supports
more than two-thirds of gerontological training. A large part of
this money comes from two branches of HEW: the Adult De-
velopment and Aging Branch of the National Institute of Child
Health and Human Development; and the AoA. A third unit of
HEW, the National Institute of Mental Health, also supports
gerontological training. An increasing amount of such training
is now centered in universities.
By 1969, a total of 94 trainees had graduated from programs
designed to train research scientists in aging. 75 percent of them
are now involved in research or teaching. This encouraging
development, however, must be measured against the fact that
of more than a quarter of a million doctoral topics listed in
American Doctoral Dissertations between 1934 and 1968, only
667 dealt with aging.
Furthermore, between 1955 and 1966, American colleges and
universities offered only 71 courses in aging-related studies at
the undergraduate and graduate levels. Only one university
trains generalists in gerontology.
On the more positive side, the University of Michigan and
Wayne State University jointly offer a special 14-week Residen-
tial Institute, including courses on the management of retirement
housing, multi-purpose senior centers, milieu therapy* and pre-
retirement education. NRTA-AARP sponsor the Ethel Percy
Andrus Gerontology Center at the University of Southern Cali-
fornia. Named for the founder of the National Retired Teachers
Association and the American Association of Retired Persons, the
Center was made possible by contributions from the Associations
and individual members. The Center, which provides an inter-
* Milieu therapy is a relatively new approach that treats patients, doctors,
and nurses as members of a "therapeutic community" in which social control
comes from the support each patient gives the other or from the group's
disapproval of those who break the rules rather than from authoritarian
edicts imposed from above.
77
disciplinary program, is now being expanded.
Universities also provide training through the Regional
Medical Programs created in 1965. The Health Professionals
Education Assistance Act of 1963 has spurred the training of
medical professionals, and the Health Education Assistance Act
of 1971 will pay medical schools a specified amount for each
graduate.
Chapter XIV
As many economic studies have shown in recent years, em-
ployment in manufacturing has declined nationally, but jobs in
the service sector of the economy have increased steadily. As
GOVERNMENT AND
service industries have grown, reorganization of professional
jobs into simpler skill components that can be handled by para-
NON-GOVERNMENT ORGANIZATION
professionals has become the conventional way of dealing with
serious shortages of professionals in growing fields such as health
and recreation services. The Allied Health Professionals Per-
sonnel Act of 1966, which was superseded by the Health Training
Improvement Act of 1970, was designed to prepare paraprofes-
sionals in the health field. No information is available on the
number of trainees involved.
In the summer of 1967, as a result of an amendment to the
Economic Opportunities Act, the New Careers program came
into being. Now known as PACE, the program trains unem-
ployed and low-income persons over 22 years of age for pre-
professional jobs with a built-in career "ladder." Someone trained
as an obstetrical aide, for example, might become an operating
room nurse. The PACE program imparts these preprofessional
skills in an intensive training regimen that includes 10 hours
of classwork and 30 hours of employment a week at entry-
level positions.
Despite the progress that has been made, experts foresee a
need, by 1980, for 44,000 administrators of institutions; 38,000
housing administrators; 50,000 recreation workers; 1,600 social
workers; and sizable increases in the number of openings for job
counselors and librarians.
As evidence of the already acute shortage, 100,000 nurses and
50,000 doctors are needed now. Indeed, of the approximately
one-third of a million persons now working in professional and
technical occupations that serve the aged mainly or only, at least
80 percent have had no preparation for the tasks that they per-
form. Significantly, however, a high proportion of those persons
being trained as gerontologists under government auspices are
having difficulty finding jobs. This raises the important question
Does the problem lie in the type of training or in the field itself?
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79
CHAPTER XIV: GOVERNMENT AND
NON-GOVERNMENT ORGANIZATION
In an article in Technology Review of June, 1966, political
scientist Leonard Fein wrote: "I want no master plan, for any
master plan must violate the self-discovered formulae of the
limited community.
There is no one true city, and hence no
one true plan. There are the cities of all our private songs, and
the greatness of the challenge is to create that environment which
will encourage all the singers.
We need less to change the
songs and blend them into one as to hear music in the plural
themes."
Despite the somewhat different focus of his article, Fein's
insistence on "hearing music in the plural themes" is relevant
to the 1961 White House Conference's concerns on government
and non-government organization. One of the central and still
unresolved issues facing the delegates in 1961 was whether older
America can best serve its interests through special organizations
that represent the aging only, or through multi-purpose organi-
zations that purport to serve everyone.
The argument of those who take the first position goes some-
thing like this: The elderly have needs in common with other
age groups, but they also have rather special needs that derive
from the aging process itself and from their growing fragility
and vulnerability. Reliance on general purpose organizations
and "across the board" programs to meet those special needs
can only dilute the impact of programs SO that any presumptive
benefits trickle down-slowly-to the elderly. Like any human
needs, those of the elderly are not simply an administrative or
bureaucratic problem. They call for substantive action by both
government and non-government organizations, with each play-
ing a proper advocacy role. The history of this country is a
history of special group interests and identities, of conflicts, but
also of the réconciliation of conflicts. It is a history of pluralism.
This is true today, perhaps, more than ever.
Those who favor general purpose organizations as the best
vehicle for meeting the needs of the elderly reason this way:
Health, economic and other problems are not peculiar to the
aged. Advocacy programs by government inevitably mean that
the advocates will feather their own nests or simply become an
organ for the special interest groups supporting them rather
than meeting the needs of those whom they are ostensibly serving.
Such programs invite the danger of excessive enlargement of
81
government power and responsibility and correspondingly
the main impetus for the expansion of local units that occurred
weaken individual, voluntary and community initiatives.
later.
Despite this basic underlying conflict, there was almost
The AoA suffered the first of several setbacks in 1967 when
unanimity among the 1961 conferees in their conclusion that
a major overhaul of the Department of Health, Education, and
some form of central agency was necessary at the Federal, State
Welfare snipped the direct line of authority between the Secre-
and local levels to deal with the problems of the elderly. The
tary of HEW and the AoA Commissioner. The HEW reorganiza-
delegates, who passed 87 formal recommendations and state-
tion created a new Department of Social and Rehabilitative
ments, were far less unanimous with respect to the form and type
Service, and AoA became one of its five divisions.
of organization required.
Despite the 1969 amendments to the Older Americans Act
At the Federal level, delegates expressed differences as to
that enhanced AoA's potential power, the agency suffered another
whether the central agency should be an independent commission,
blow last July, when two of its service programs-Foster Grand-
a council, an expansion of existing special staff or a new unit
parents and RSVP-were transferred to the new Federal Agency
within an existing department. The Conference did assert clearly,
for Volunteer Activities, now known as ACTION. Earlier, AoA's
however, that the central agency should play a leadership role
responsibility for reviewing and approving research and demon-
in determining policy and placing all Federal actions in a common
stration programs had been shifted to another unit of HEW.
framework.
The progressive downgrading of AoA prompted the Senate
The same degree of uncertainty characterized the delegates'
Special Committee on Aging to express concern for the agency's
approach to a central State agency, and there was an even wider
future and to note that "Congress intended AoA to be a strong
range of differences on the appropriate organizational structure
force for older Americans." The Committee called upon the 1971
for local areas. Recommendations ranged from creating an
White House Conference to give thorough consideration to the
agency under local government auspices or organizing it through
fate of AoA, observing that the deadline for Congressional action
voluntary effort, to setting up a community body that would
to renew, modify or replace the Older Americans Act and AoA
include government and non-government agencies, institutions,
is June 30, 1972.
interested individuals, and professionals in aging.
With regard to national voluntary organizations, the dele-
In 1970, when the President's Task Force on Aging recom-
gates proposed the creation of a permanent coordinating council
mended creation of a new Executive Office on Aging, it said that
of voluntary groups in the aging field, adding that representatives
such an organizational change at the Federal level was indispen-
of voluntary groups should be included on advisory committees
sable "if the Nation is to achieve the goals set forth in the Older
Americans Act.
"
at all levels of government.
Developments Since 1961
Some of the problems facing the States and local communities
parallel the organizational problems evident at the national level.
In 1963, President Kennedy established the President's Coun-
Although every State in the union now has an agency on aging,
cil on Aging. The creation two years later of AoA was a quantum
few are working effectively and most suffer from the same
leap forward in Federal attention to the needs of the elderly.
problems that have afflicted AoA-low visibility, and limited
The Older Americans Act, which established AoA, also called for
power and influence. With few exceptions, the staffs are small
State Units on Aging and Federal aid to such Units. It has
and the available dollar resources meager. Among local organi-
resulted in a network of State organizations, a direction most
zations, the situation may be even more acute, reflecting striking
states had not yet taken at the time of the 1961 Conference. In
variations in the system of government and in the depth of
fact, it was not until 1970 that all States, the District of Colum-
concern for the problems of the aging.
bia, Puerto Rico and territorial areas had created Units. Today
there are 55 in all.
Although some cities and counties had established organiza-
tions on aging before the 1961 Conference, the AoA provided
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83
ABOUT NRTA-AARP
tunities at the local level. Constantly the Associations seek ways
to expand both the range and the variety of these programs.
The National Retired Teachers Association and the American
For example-illustrating their long-range commitment to a bet-
Association of Retired Persons are nonprofit, nonpartisan Asso-
ter life for all older people-NRTA-AARP recently joined with
ciations with a combined membership of more than 3,200,000,
the University of Southern California to build the $4,000,000
the largest membership organization for older people in the
Ethel Percy Andrus Gerontology Center, a unique research and
nation. As such, they are increasingly called upon by Congres-
training center now under construction on the USC campus.
sional committees and government agencies to fill a spokesman-
ship role, not just for their own membership, but for 20 million
The credo of NRTA-AARP is summed up in two short
mottos: Independence, Dignity and Purpose and To Serve, Not
older Americans. This strong leadership also is being expanded
to be Served.
in the field of retirement preparation to help those approaching
retirement to avoid the many pitfalls that faced America's first
retirement generation.
It is the members of this first retirement generation-now
in their mid-seventies to mid-eighties-who formed the founding-
member nucleus around which NRTA-AARP have grown. When
it became clear that retirement and America's response to aging
itself were forcing the nation's older people to accept a devalued,
outcast view of themselves, something had to be done. One of
those who set out to reverse the trend was Ethel Percy Andrus,
a brilliant and visionary woman who had just ended a 40-year
career as teacher and principal in Los Angeles schools. In 1947,
she organized the National Retired Teachers Association for
retired teachers and school administrators. In 1958, she organ-
ized a sister organization, the American Association of Retired
Persons, with membership open to all people past 55.
As set forth in their certificates of incorporation, both organi-
zations are dedicated to aiding the aged in their needs-social,
physical, economic and intellectual. They are further dedicated
to studying the meaning of a longer life in a society which offers
more and more free time, and to identifying those experiences
that lead to life fulfillment in our changing society. To help
create the new affirmative patterns for aging, the Associations
established an outstanding group of publications, including the
two bi-monthly magazines, NRTA Journal and Modern Maturity,
and monthly news bulletins for both Associations.
NRTA-AARP gained very quickly the reputation for being
pioneers and social innovators in their constant search for ways
to improve every facet of retirement living. Their pioneering
programs and projects relate to health, to conserving income, to
employment opportunities, to leisure time activity, to new learn-
ing experiences for the mature, to community service oppor-
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