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91
6
10
2
[299] Apr. 28.
Public Papers of the Presidents
he shall not stand before mean men." I can
remarks he referred to Henry Ford II and Stuart T.
promise you that if you are diligent in your
Saunders, who served as Cochairmen of the Busi-
business, this President will always be
ness Committee for Tax Reduction in 1963, Douglas
Dillon, Secretary of the Treasury, William McC.
pleased to stand with you-anywhere, any-
Martin, Jr., Chairman of the Board of Governors
timel
of the Federal Reserve System, and Robert V.
Roosa, Under Secretary of the Treasury for Mone-
NOTE: The President spoke in the State Dining
tary Affairs.
Room at the White House. In the course of his
As printed, this item follows the prepared text
released by the White House.
300 Letter to the President of the Senate and to the Speaker
of the House Transmitting the Bill for the Appalachian
Region. April 28, 1964
Dear Mr.
The roll-call of deficiencies in Appalachia
I am today sending to the Congress for
is not a happy catalogue. In this region
its consideration a bill designed to make
too little human potential is realized. Too
possible the economic development of the
ineffective a use of physical resources is a
Appalachian Region.
result. There is a shortage not only of
Appalachia straddles a ten-state area of
promise, but of hope.
more than 165,000 square miles, with more
The investment I ask the Congress to
than 15 million Americans in residence.
make is as rooted in fiscal common sense
The general economic progress of the na-
as it is in human compassion.
tion has passed Appalachia by-for reasons
The Federal government alone spends
which are cheerlessly clear:
over $41 million in welfare relief in this
(1) Difficult-and in some instances—
area every month-nearly one-half billion
impossible access.
dollars a year. With some 8.5% of the
(2) Inadequate control of water-which
U.S. population, Appalachia receives 17%
breeds both floods and scarcity of water for
of all surplus commodity foods distributed
industrial and recreational purposes.
to the needy throughout the country.
(3) A mineral base of coal, timber and
This bill I submit to the Congress is the
agriculture sorely in need of creative
result of a year's study by the state govern-
attention.
ments and top Federal officials. It aims not
The visible lag of Appalachia justifies the
merely at the symptoms of economic mal-
special programs I respectfully request you
nutrition, but at its causes. To label the
to consider.
region luckless or unblessed is no answer.
But behind the description of the need of
Our response must be to put to this task the
a region lies the desolation of a people.
planning, the priority and the money re-
I have seen the despair and the hopeless-
quired to assist those who want and need
ness in the faces of these citizens. What
help for themselves and their families. To
exists in this area is a challenge to the inge-
this bill I attach a copy of the report of the
nuity as well as the compassion of the
President's Appalachian Regional Commis-
Congress.
sion, appointed by President Kennedy.
586
REMARKS ON Econ
DEVELOPMENT IN
APPACACHIA
Lyndon B. Johnson, 1963-1964
Apr. 28 [300]
The initiative and concern demonstrated
would be $22 million.
by state governments is encouraging. They
4. An assistance program for timber man-
came together, bound by a common problem
agement, manufacturing and marketing.
and allied in a common goal. They ap-
Fiscal year 1965 cost would be $6.7 million.
proached the solution without regard to
5. Expanded programs for promoting new
partisan politics.
uses of coal, improved mining practices and
I met with the Appalachian governors. I
land restoration following mining opera-
was witness to their sincerity-and their de-
tions. Fiscal year 1965 cost would be $13
termination-to commit state resources to this
million. This figure includes a $10 million
attack on inadequacy. The Federal govern-
increase over the amount originally recom-
ment should not stand aloof from their efforts.
mended by the Appalachian Regional Com-
The governor of Ohio has advised me that
mission, based on my strong views in
his State which was originally tendered an
which I am joined by the Council of Ap-
invitation by the Council of Appalachian
palachian Governors that the $10 million
Governors and the President's Appalachian
should be added.
Regional Commission to join with the other
6. Stepped-up human resources programs,
nine States of the Region in a joint effort to
with those programs administered by the
lift the economy of the area has decided to
Office of Economic Opportunity to be han-
participate in the program. It is both appro-
dled by that Agency when it is established.
priate and desirable that those portions of
Fiscal year 1965 cost would be $71,000,000 of
Ohio lying within Appalachia join with the
which $34,000,000 would be administered by
remainder of the Region and accordingly
the Office of Economic Opportunity.
the bill I am sending to the Congress re-
7. Establishment of a Federal-State Re-
flects this.
gional Commission for comprehensive plan-
The programs are basic. They focus on
ning to guide all levels of government and
clear and primary needs-such as access to
private agencies in their continuing attack on
the land-construction of public works-and
the economic distress in the region.
improvement of mineral and land use:
This entire program-estimated at $228
I. A developmental highway system of
million plus $34 million included in the
2,350 miles, with a total cost of $920 million
anti-poverty program-was included in the
and fiscal year 1965 cost of $90,000,000. Al-
contingency item of $500 million in my 1965
though the Federal and State contribution
budget submitted to the Congress last
would be on a 50-50 basis, where the States
January.
are unable to meet this formula, the Federal
This is an active beginning to end an old
share could rise to 80 percent.
problem in Appalachia. It is the judgment
2. An acceleration of water facilities con-
of both the experts who labored on the details
struction with emphasis on flood control, in-
of the program and the governors who moni-
dustrial, and recreational impoundments and
tored the plan every step of the way that
sewage treatment. Fiscal year 1965 cost
this program will work visible improvements
would be $45.8 million.
in a very short time.
3. A pasture improvement program to
I strongly urge the Congress to attach to
convert marginal farm land to pasture for
this bill the urgency and the need that is so
livestock production. Fiscal year 1965 cost
plainly written on the faces of Appalachian
587
[300] Apr. 28
Public Papers of the Presidents
citizens. They are looking to you and to
pore of the Senate, and to the Honorable John W.
me for help so they can help themselves.
McCormack, Speaker of the House of Representatives.
The report submitted with the draft bill is
Sincerely,
LYNDON B. JOHNSON
entitled "Appalachia, a Report by the President's
Appalachian Regional Commission, 1964" (Govern-
NOTE: This is the text of identical letters addressed
ment Printing Office, 93 pp.).
to the Honorable Carl Hayden, President pro tem-
30I Remarks to a Group of Civil Rights Leaders.
April 29, 1964
Archbishop O'Boyle, Reverend Blake, Rabbi
shaping our society. By their actions they
Miller, and Bishop Smith:
not only restored dignity and hope to mil-
We are delighted to welcome you to this,
lions of Americans, they immeasurably ele-,
your house, the first house in the first land
vated and strengthened the churches which
of the world, because from the time of the
they served.
ancient Hebrew prophets and the dispersal
Today, as we meet here a century later,
of the money changers, men of God have
we are faced with and we are given another
taught us that social problems are moral
great opportunity. Today, as we meet here,
problems on a huge scale. They have dem-
again the problem of racial wrongs and
onstrated that a religion which did not
racial hatreds is the central moral problem of
struggle to remove oppression from the
this Republic. Today, as we meet here in
world of men would not be able to create
the first house of the land, again hostility
the world of spirit. They have preached
and misunderstanding and even violence
that the church should be the first to awake
awaits the man who attempts to translate
to individual suffering and the church
the meaning of God's love into the actions
should be the bravest in opposing all social
and the thoughts of this world and this time.
wrongs.
Today, again the hope for happiness of
This tradition is deeply imbedded in
millions of Negro Americans is going to be
America's history. During the middle of
profoundly affected by your efforts. And
the 19th century, men of God, men of all
today, again, religion has one of those rare,
faiths, men of the North, men of the South,
historical opportunities to renew its own
took to pulpits, to press, yes, even out into
purpose, to enhance the dignity of its own
the public squares to demand an end to the
social role, to strengthen its institutions, and
moral evil of slavery. As a consequence,
its heritage.
we took the chains off the slaves.
Our most immediate need is to pass the
Many who followed this path suffered for
civil rights bill now before the Congress.
it. Many were then condemned by their
A hundred years ago Lincoln freed the slaves
congregation. Many were deprived of their
of their chains, but he did not free the coun-
positions. Churches were burned and
try of its bigotry. A hundred years ago
physical violence was often the reward of
Lincoln signed the Emancipation Procla-
those who in that time spoke freely and
mation, but until education is unaware of
provided leadership. But long ago their
race, until employment is blind to color,
efforts were a significant force in not only
emancipation will be a proclamation, but it
ending slavery in this country, but in re-
will not be a fact.
588
Lyndon B. Johnson, 1963-1964
Oct. 25 [711]
As long as I am in a position to do so, I
Fla. His opening words referred to Governor Farris
will try to contribute what I can to what
Bryant, Senators George A. Smathers and Spessard L.
Holland, and Representative Dante B. Fascell; all
all of you have envisioned as a most worth-
of Florida.
while and public project.
The book presented to the President contained an
Thank you for this. I will treasure it.
illustrated description of "Interama," a cultural and
trade center for Latin American countries, under
NOTE: The President spoke at 7:40 p.m. in the
construction in Miami.
Terrace Room at the Dupont Plaza Hotel in Miami,
711 Executive Order 11186 Establishing the Federal Development
Planning Committee for Appalachia. October 25, 1964
WHEREAS representatives of the Federal
one of whom shall be designated by and rep-
Government and of the Governors of the
resent each of the following-named officers,
States in the Appalachian region have been
respectively: the Secretary of the Interior, the
cooperating in the preparation of plans and
Secretary of Agriculture, the Secretary of
programs for the long-range development of
Commerce, the Secretary of Labor, the Sec-
Appalachia; and
retary of Health, Education, and Welfare,
WHEREAS such, plans have provided for
the Secretary of the Army, the Housing and
coordinated action by Federal, State, and
Home Finance Administrator, and the Di-
local agencies in carrying out programs to
rector of the Office of Economic Opportu-
further the development of Appalachia and
nity, and (3) a member who shall represent
to facilitate and encourage private invest-
the Tennessee Valley Authority and shall be
ment in that area; and
designated by the board of directors of the
WHEREAS the Governors of various States
Authority.
of the Appalachian region have requested
(c) The Chairman may request any Fed-
that such cooperation be continued; and
eral agency head not referred to in subsec-
WHEREAS the proper discharge by the Fed-
tion (b), above, to designate a representative
eral Government of its responsibilities to the
to participate in meetings of the Committee
people of the Appalachian region requires
concerned with matters of substantial interest
that such cooperation be continued and that
to such agency head.
related planning activities of the Federal
SEC. 2. Functions of the Chairman. (a)
Government be effectively coordinated:
The Chairman shall cooperate with repre-
Now, THEREFORE, by virtue of the author-
sentatives designated by the Governors of
ity vested in me as President of the United
States in the Appalachian region in:
States, it is ordered as follows:
(1) Fostering surveys and studies to pro-
SECTION I. Establishment of Committee.
vide data required for the preparation of
(a) There is hereby established the Federal
plans and programs for the development of
Development Planning Committee for Ap-
Appalachia;
palachia (hereinafter referred to as the
(2) Preparing coordinated plans for the
"Committee").
development of Appalachia deemed appro-
(b) The Committee shall be composed of
priate to carry out existing statutory respon-
the following: (1) a Chairman, who shall be
sibilities of Federal, State, or local agencies.
appointed by the President, (2) members,
Such plans shall be designed to promote
1433
[711] Oct. 25
Public Papers of the Presidents
optimum benefits from the expenditure of
provide administrative services for the Com-
Federal, State, and local funds and to facili-
mittee and for the Chairman.
tate and promote private investment in the
(c) Each Federal agency the head of
development of Appalachia; and
which is referred to in Section (b) of this
(3) Preparing legislative and other rec-
order shall, as may be necessary, furnish as-
ommendations with respect to both short-
sistance to the Committee in accordance with
range and long-range programs and projects
the provisions of Section 214 of the Act of
for Federal, State, or local agencies.
May 3, 1945 (59 Stat. 134; 3I U.S.C. 691).
(b) With the approval of the agency head
(d) Each Federal agency shall, consonant
concerned the Chairman may arrange for
with law and within the limits of available
recommended surveys and studies to be made
funds, cooperate with the Committee and
by any Federal agency with respect to mat-
with the Chairman in carrying out their
ters falling within the existing statutory au-
functions under this order. Such coopera-
thorities and responsibilities of that agency.
tion shall include, as may be appropriate,
SEC. 3. Functions of the Committee. The
(1) furnishing relevant available informa-
Committee shall:
tion, (2) making studies and preparing re-
(a) Advise the Chairman with respect to
ports pursuant to requests of the Chairman,
(I) surveys and studies needed for the prep-
(3) in connection with the development of
aration of development plans, (2) the con-
programs and priorities of the agency, giving
crete proposals for surveys and studies de-
full consideration to any plans and recom-
veloped by the Chairman in cooperation with
mendations for the development of Ap-
the representatives of the Governors, and (3)
palachia, including recommendations made
desirable development objectives and pro-
by the Committee, and (4) advising on the
grams for the Appalachian region.
work of the Committee as the Chairman
(b) Receive, review, and comment on all
may from time to time request.
tentative development plans or other tenta-
SEC. 5. Construction. Nothing in this
tive recommendations developed by the
order shall be construed as subjecting any
Chairman in cooperation with the represent-
Federal agency, or any function vested by
atives of the Governors; and
law in, or assigned pursuant to law to, any
(c) Receive and consider final plans and
Federal agency, to the authority of the Com-
recommendations and transmit them, with
mittee or the Chairman, or as abrogating or
its own comments, to the President and the
restricting any such function in any manner.
heads of interested Federal agencies.
LYNDON B. JOHNSON
SEC. 4. Administrative arrangements. (a)
The White House,
If the Chairman of the Committee does not
October 23, 1964
concurrently hold other compensated office
or employment under the United States, he
NOTE: On the same day the White House, in an-
shall receive such compensation under this
nouncing the establishment of the Federal Develop-
ment Planning Committee for Appalachia, made
order as shall be fixed in accordance with the
public a portion of the President's letter to John
standards and procedures of the Classifica-
Sweeney, Special Assistant to Under Secretary of
tion Act of 1949, as amended.
Commerce Franklin D. Roosevelt, Jr., appointing
him Chairman of the Committee. In his letter the
(b) The Department of Commerce is
President said: "From your previous work in con-
hereby designated as the agency which shall
nection with the problems of Appalachia, you are
1434
Lyndon B. Johnson, 1965
Mar. 9 [103]
take a more meaningful role in meeting the
It will not produce dramatic, visible re-
whole spectrum of problems posed by crime.
sults overnight. But it is an effort we must
It means that the Federal Government
begin now.
will seek to exercise leadership and to assist
I ask the help of Congress. I believe that
local authorities in meeting their responsi-
these actions and proposals are soundly based
bilities.
and give promise of meeting urgent needs
It means that we will make a national
of a growing nation. I commend them to
effort to resolve the problems of law enforce-
the American people and to the Congress
ment and the administration of justice-and
and urge their prompt enactment.
to direct the attention of the Nation to the
LYNDON B. JOHNSON
problems of crime and the steps that must
The White House
be taken to meet them.
March 8, 1965
This effort will involve great difficulties.
NOTE: See also Items 382 and 526.
103 Remarks Upon Signing the Appalachia Bill.
March 9, 1965
OVER the past 15 months it has been my
should be identified with the Appalachia
privilege to receive from the Congress a rare
region of our Nation. In our history no
number of unusually significant legislative
region has contributed more to the shaping
measures. This measure today may well
of our destiny.
outlive many others in its lasting contribu-
The Appalachian Ranges were the first
tion to the well-being of our Nation.
challenge and the first test to the settlers of
The objectives of this Appalachian bill are
this seaboard. Through the Cumberland
important. But the origins of the measure
Gap Americans found their way to the
are equally important. Originated by the
promise and the plenty of a continent that
Governors of the Appalachian States, formed
is united.
in close cooperation with the Federal Ex-
It is not too much to suggest that today
ecutive, approved and enacted by the Con-
we may again find our way to new promise
gress of all the people, this is the truest
and new fulfillment by taking up the
example of creative federalism in our times.
human challenge of modern Appalachia.
But it is more.
A great President, Theodore Roosevelt,
This legislation marks the end of an era
once said, "It is not what we have that will
of partisan cynicism towards human want
make us a great nation, it is the way that
and misery. The dole is dead. The pork
we use it."
barrel is gone. Federal and State, liberal
We have much in Appalachia. The area
and conservative, Democrat and Republican,
is larger than all but one of the 48 contiguous
Americans of these times are concerned with
States, a State which modesty impells me
the outcome of the next generation, not the
not to identify by name. Only two States
next election. That is what the provisions
of the Union have larger populations. Yet
of this legislation clearly reflect.
the nearly 17 million Appalachian residents,
It is fitting that such landmark legislation
more numerous than residents of New Eng-
271
[103] Mar. 9
Public Papers of the Presidents
land or the farm States or the mountain
human freedom but also to human dignity
States, lag far behind in their participation
and decency. That is not a Federal com-
in our prosperity.
mitment alone but a compact of our States
Our national per capita income has
as well. I believe it is the will of the Amer-
reached $2,300. In Appalachia it is esti-
ican people that this commitment shall be
mated near $1,400. Family poverty is half
fulfilled in all regions and flouted in none.
again higher than the national ratio. So
The bill that I will now sign will work
also is the percentage of persons over 25 with
no miracles overnight. Whether it works
less than a fifth grade education.
at all depends not upon the Federal Gov-
The percentage of Appalachia's popula-
ernment alone but the States and the local
tion receiving some form of Federal assist-
governments as well.
ance is 45 percent above the rest of the
I am so proud that so many of the Gov-
country. The IO year cost of such assist-
ernors and State officials from the States
ance would amount to almost $5 billion.
concerned could be here this morning, to
These are the facts of our challenge, and also
join their able Senators and Congressmen
of our opportunity.
who helped make this legislation possible at
America today has many responsibilities,
this ceremony. But I sign this bill in the
more diverse, more far flung, more vital to
belief that we can and that we shall add
all mankind than any other nation has ever
strength for all America by renewing the
in history willingly assumed. Wherever
strength of this old and this honored region
we have our commitments, whether to the
of Appalachia.
old and the strong or to the young and the
NOTE: The President spoke at II:02 a.m. in the
weak, we shall match our words with deeds.
Rose Garden at the White House.
But we recognize realistically that our
As enacted, the bill (S. 3) is Public Law 89-4
strength abroad rests upon our strength at
(79 Stat. 5).
On March 25 the President issued Executive
home. And that is why we must and we
Order II209 "Establishing the Federal Develop-
do labor in unity to perform together tasks
ment Committee for Appalachia and Prescribing
that have been too long neglected in every
Other Arrangements for Coordination With the
Appalachian Regional Commission" (30 F.R. 3909;
region east and west, north and south.
3 CFR, 1965 Supp.).
This Nation is committed not only to
104 Statement by the President on the Situation in
Selma, Alabama. March 9, 1965
EVER SINCE the events of Sunday after-
and sincere interest in attaining the precious
noon in Selma, Ala., the administration has
right to vote.
been in close touch with the situation and
The best legal talent in the Federal Gov-
has made every effort to prevent a repetition.
ernment is engaged in preparing legislation
I am certain Americans everywhere join in
which will secure that right for every Ameri-
deploring the brutality with which a number
can. I expect to complete work on my rec-
of Negro citizens of Alabama were treated
ommendations by this weekend and shall
when they sought to dramatize their deep
dispatch a special message to Congress as
272
[554]
Oct.
6
Public Papers of the Presidents
554 Remarks to Officials and Chambers of Commerce Representatives
of the Appalachian Region of Tennessee. October 6, 1965
Governor Ellington, and my beloved friend,
our military boys, and who are being
Joe Evins, Mr. Johnson, distinguished
honored today over at the Press Club. I
guests:
hope that I can go over there and join them.
Lady Bird and I are most grateful for these
They presented me with a cartoon, which I
beautiful carvings, for this lovely rug, for
will put in this room with your presents.
these other examples of the craftsmanship
Bill, if you will get it. It is in my room in
and the artistry for which Tennessee, that
there, that chart, the cartoons they presented
great State, is so justly famous.
me.
I thank you also for this very splendid
They also presented Mrs. Johnson one,
scroll expressing your support for the
and since you referred to beautification, I
Appalachia program.
thought you would enjoy this.
We will treasure these presentations, we
This is almost a prize-winning cartoon.
will remember them, and we have a very
I'm not sure that either Lady Bird or Liz
special place for memories of this kind. We
Carpenter would approve of this display, but
are going to have an exhibit in the memento
our good friend Bill Mauldin has this beauti-
room at the University of Texas Library,
ful interstate highway. We signed a bill
where we will have these on display for
the other day involving billions of dollars in
children of Tennessee and other States who
the years ahead that we will spend on inter-
may from time to time visit that library.
state highways through the country, and here
I remember how much pleasure I received
is the highway, with its very carefully
when President Eisenhower took me on a
designed, its winding beautification scheme
tour of the Oval Room-now what we call
here. And then, here are the signs along
the Yellow Room-in the White House,
it: "Smoke El Smello," "Drink El Fizzo,"
which President Roosevelt once used for his
"Eat Here," "Gas Here," "Try Here," and
office, and I saw all the mementos that Presi-
"Use Here."
dent Eisenhower had received when he was
And then, most prominent, is found one
our European Commander.
little spot left for a billboard there on the
And I am keeping these pictures and
curve before you go over the divide, and
mementos that are brought to me from
that one says: "Impeach Lady Bird"!
time to time.
Here is one they drew in the office this
I want to thank you for what you have said
morning. They have put a Navy cap on
about the Appalachia program, because, as
me, that is supposed to represent all the
you have presented from the people of
services, though. These were done by the
Tennessee, your President accepts these little
cartoonists who were here.
items in behalf of all the people of our land
But with our Appalachia program, we
who have made the Appalachia plan really
have charted our course with care and with
possible.
vision. We are so happy that it has attracted
Now we are moving behind the planning
your cooperation, and we just must make that
stage.
vision come true.
I have just been receiving in the next room
To do this, we are going to need the
some of the cartoonists who take care of
cooperation of your spokesmen in public
1048
Lyndon B. Johnson, 1965
Oct. 6 [554]
life, particularly your Representatives in
They will be memorials to you in our
Congress, your able Governor, your mayors,
little memorial room.
your Senators; all of your public officials,
Americans have always been dedicated to
particularly your teachers, your doctors, your
the proposition that tomorrow can be what-
nurses, and all public-spirited groups repre-
ever we wish it to be, and for millions in the
sented here today.
Appalachia area, tomorrow is going to be
I want to thank the State of Tennessee
better.
for furnishing me one of the best minds, one
We are planting trees by the rivers of wa-
of the most able men in this administration,
ter, and in the words of the Psalm, "They
and certainly one of the closest friends I
will bring forth fruit in their season."
have-Governor Ellington. He has been a
We are going to have a big test tomor-
tower of strength to me, and in the days
row-a test whether the Federal Govern-
and hours ahead when I'll be out of pocket
ment, that spends the money in building the
for a little bit, I am going to rely on men
roads of the country, will have any right to
like Buford Ellington to be sure that the
determine what kind of places and how the
Government continues to operate at a high
scenery on those roads will be preserved.
state of efficiency. And to you people in
We believe that the people are going to
Tennessee who lent him to me temporarily,
win.
I want to say thank you.
We believe that we are going to take the
This job cannot be done, however, just by
necessary precautions to preserve the scenery
the Government alone. Only the toil and
of our land for the enjoyment of our children.
the efforts of all the people in all the 373
You don't know how happy I am that the
counties of the Appalachia area can produce
people of Tennessee would come here today
the miracles that we need.
and share their generosity with me and their
So, the future in that area of the country
vision with me, and I am going to look for-
rests in your hands. I have seen what you
ward to the day when I can come back to your
can do with the great Tennessee Valley, and
great State, and Joe Evins' district, and see
I have seen the pioneering leadership that
some of your people building and working
the great State of Tennessee has always
and making the things that will make life
supplied.
happier for all of us.
You know, it's just a common garden
Thank you so much.
variety expression in my State that every
NOTE: The President spoke at 12:20 p.m. in the
schoolboy has at the end of his tongue: There
Cabinet Room at the White House. In his opening
never would have been a Texas if there
words he referred to Buford Ellington, Director of
the Office of Emergency Planning and former Gov-
hadn't been a Tennessee. You gave us Sam
ernor of Tennessee, Representative Joe L. Evins of
Houston, you gave us Sam Rayburn, and you
Tennessee, and William Johnson of Sparta, Tenn.
have given us the men who fought at the
During his remarks the President referred to,
Alamo and San Jacinto. You have given us
among others, Bill D. Moyers, Special Assistant to
the President, Mrs. Elizabeth S. Carpenter, Press
our independence, and you are still support-
Secretary and Staff Director for Mrs. Johnson, and
ing us. And what you have given us today
Bill Mauldin, political cartoonist.
The group included representatives from the Up-
in these little tokens are representative sym-
per Cumberland area of Tennessee, among them
bols of the spirit of the people of Tennessee,
members of the Upper Cumberland Development
and the kind of hard work that you believe
Association, who came to the White House to ex-
press their appreciation for the President's interest
in.
1049
REMARKS ON
HUD
Lyndon B. Johnson, 1965
Mar. 2 [90]
over the Nation, I participated in the meet-
NOTE: The President spoke at 5:40 p.m. in the East
ing and in the conference that gave America
Room at the White House. In his opening words he
referred to Francis Keppel, Commissioner of Edu-
leadership in preparing the minds of her
cation, and the following officials of the National
little ones. And we inaugurated, we were
Education Association: Dr. Lois V. Edinger, Presi-
there to see this first train run that would
dent, Dr. William G. Carr, Executive Secretary, and
Dr. Robert E. McKay, Chairman of the Legislative
never get started, and if it did we'd never get
Commission. During the course of his remarks he
it stopped.
referred to W. T. Donaho, former Superintendent of
Well, we are going to get it started, but we
the Cotulla (Tex.) Public Schools.
About 200 officials of the National Education
are not ever going to stop it.
Association attended the conference.
90 Special Message to the Congress on the Nation's Cities.
March 2, 1965
To the Congress of the United States:
task is to put the highest concerns of our peo-
Throughout man's history, the city* has
ple at the center of urban growth and ac-
been at the center of civilization. It is at the
tivity. It is to create and preserve the sense
center of our own society.
of community with others which gives us
Over seventy percent of our population-
significance and security, a sense of belong-
135 million Americans-live in urban areas.
ing and of sharing in the common life.
A half century from now 320 million of our
Aristotle said: "Men come together in
400 million Americans will live in such
cities in order to live. They remain together
areas. And our largest cities will receive the
in order to live the good life."
greatest impact of growth.
The modern city can be the most ruth-
Numbers alone do not make this an ur-
less enemy of the good life, or it can be its
ban nation. Finance and culture, commerce
servant. The choice is up to this genera-
and government make their home in the
tion of Americans. For this is truly the
city and draw their vitality from it. With-
time of decision for the American city.
in the borders of our urban centers can be
In our time, two giant and dangerous
found the most impressive achievements of
forces are converging on our cities: the
man's skill and the highest expressions of
forces of growth and of decay.
man's spirit, as well as the worst examples
Between today and the year 2000, more
of degradation and cruelty and misery to be
than 80 percent of our population increase
found in modern America.
will occur in urban areas. During the next
The city is not an assembly of shops and
fifteen years, thirty million people will be
buildings. It is not a collection of goods and
added to our cities-equivalent to the com-
services. It is a community for the enrich-
bined population of New York, Chicago,
ment of the life of man. It is a place for
Los Angeles, Philadelphia, Detroit and
the satisfaction of man's most urgent needs
Baltimore. Each year, in the coming gen-
and his highest aspirations. It is an instru-
eration, we will add the equivalent of 15
ment for the advance of civilization. Our
cities of 200,000 each.
*In this message the word city is used to mean
Already old cities are tending to combine
the entire urban area-the central city and its
into huge clusters. The strip of land from
suburbs. [Ed. note: Footnote in original.]
southern New Hampshire to northern Vir-
231
[90]
Mar.
2
Public Papers of the Presidents
ginia contains 2I percent of America's popu-
drop-outs, delinquency and social disorga-
lation in 1.8 percent of its areas. Along the
nization.
West Coast, the Great Lakes, and the Gulf
Our cities are making a valiant effort to
of Mexico, other urban giants are merging
combat the mounting dangers to the good
and growing.
life. Between 1954 and 1963 per capita mu-
Our new city dwellers will need homes
nicipal tax revenues increased by 43%, and
and schools and public services. By 1975
local government indebtedness increased by
we will need over two million new homes
119%. City officials with inadequate re-
a year. We will need schools for IO million
sources, limited authority, too few trained
additional children, welfare and health fa-
people, and often with too little public sup-
cilities for 5 million more people over the
port, have, in many cases, waged a heroic
age of sixty, transportation facilities for the
battle to improve the life of the people they
daily movement of 200 million people and
serve.
more than 80 million automobiles.
But we must do far more as a nation if we
In the remainder of this century-in less
are to deal effectively with one of the most
than forty years-urban population will
critical domestic problems of the United
double, city land will double, and we will
States.
have to build in our cities as much as all
Let us be clear about the core of this prob-
that we have built since the first colonist
lem. The problem is people and the quality
arrived on these shores. It is as if we had
of the lives they lead. We want to build not
forty years to rebuild the entire urban
just housing units, but neighborhoods; not
United States.
just to construct schools, but to educate chil-
Yet these new overwhelming pressures
dren; not just to raise income but to create
are being visited upon cities already in dis-
beauty and end the poisoning of our en-
tress. We have over nine million homes,
vironment. We must extend the range of
most of them in cities, which are run down
choices available to all our people so that
or deteriorating; over four million do not
all, and not just the fortunate, can have access
have running water or even plumbing.
to decent homes and schools, to recreation
Many of our central cities are in need of
and to culture. We must work to overcome
major surgery to overcome decay. New
the forces which divide our people and erode
suburban sprawl reaches out into the coun-
the vitality which comes from the partner-
tryside, as the process of urbanization con-
ship of those with diverse incomes and inter-
sumes a million acres a year. The old, the
ests and backgrounds.
poor, the discriminated against are increas-
The problems of the city are problems of
ingly concentrated in central city ghettos;
housing and education. They involve in-
while others move to the suburbs leaving
creasing employment and ending poverty.
the central city to battle against immense
They call for beauty and nature, recreation
odds.
and an end to racial discrimination. They
Physical decay, from obsolescent schools
are, in large measure, the problems of Amer-
to polluted water and air, helps breed social
ican society itself. They call for a gener-
decay. It casts a pall of ugliness and de-
osity of vision, a breadth of approach, a
spair on the spirits of the people. And this
magnitude of effort which we have not yet
is reflected in rising crime rates, school
brought to bear on the American city.
232
Lyndon B. Johnson, 1965
Mar. 2 [90]
Whatever the scale of its programs, the
respect the jurisdictions of mayors and city
federal government will only be able to do
councils, or even of Governors. Wealthy
a small part of what is required. The vast
suburbs often form an enclave whereby the
bulk of resources and energy, of talent and
well-to-do and the talented can escape from
toil, will have to come from state and local
the problems of their neighbors, thus im-
governments, private interests and individ-
poverishing the ability of the city to deal with
ual citizens. But the federal government
its problems.
does have a responsibility. It must help to
The interests and needs of many of the
meet the most urgent national needs; in
communities which make up the modern
housing, in education, in health and many
city often seem to be in conflict. But they
other areas. It must also be sure that its
all have an overriding interest in improving
efforts serve as a catalyst and as a lever to help
the quality of life of their people. And
and guide state and local governments to-
they have an overriding interest in enriching
ward meeting their problems.
the quality of American civilization. These
We must also recognize that this message,
interests will only be served by looking at
and the program it proposes, does not fully
the metropolitan area as a whole, and plan-
meet the problems of the city. In part, this
ning and working for its development.
is because many other programs, such as
those for education and health, are dealt with
DEPARTMENT OF HOUSING AND URBAN
separately. But it is also because we do not
DEVELOPMENT
have all the answers. In the last few years
there has been an enormous growth of in-
To give greater force and effectiveness
terest and knowledge and intellectual fer-
to our effort in the cities I ask the Congress
ment. We need more thought and wisdom
to establish a Department of Housing and
and knowledge as we painfully struggle to
Urban Development.
identify the ills, the dangers and the cures
Our urban problems are of a scope and
for the American city. We need to re-
magnitude that demand representation at
shape, at every level of government, our ap-
the highest level of government. The
proach to problems which are often. differ-
Housing and Home Finance Agency was
ent than we thought and larger than we had
created two decades ago. It has taken on
imagined.
many new programs. Others are proposed
I want to begin that process today.
in this message. Much of our hopes for
We begin with the awareness that the city,
American progress will depend on the ef-
possessed of its own inexorable vitality, has
fectiveness with which these programs are
ignored the classic jurisdictions of munici-
carried forward. These problems are al-
palities and counties and states. That or-
ready in the front rank of national concern
ganic unit we call the city spreads across the
and interest. They deserve to be in the
countryside, enveloping towns, building vast
front rank of government as well.
new suburbs, destroying trees and streams.
The new Department will consist of all
Access to suburbs has changed the character
the present programs of HHFA. In addi-
of the central city. The jobs and income of
tion it will be primarily responsible for
suburbanites may depend upon the oppor-
federal participation in metropolitan area
tunities for work and learning offered by the
thinking and planning. This new depart-
central city. Polluted air and water do not
ment will provide a focal point for thought
233
[90] Mar. 2
Public Papers of the Presidents
and innovation and imagination about the
will also be keyed to planning requirements.
problems of our cities. It will cooperate
Among the most vital needs of our metro-
with other federal agencies, including those
politan areas is the requirement for basic
responsible for programs providing essential
community facilities-for water and sewage.
education, health, employment and social
Many existing systems are obsolete or need
services. And it will work to strengthen
major rehabilitation. And population
the constructive relationships between na-
growth will require a vastly increased effort
tion, state and city-the creative federalism-
in years ahead.
which is essential to progress. This partner-
These basic facilities, by their very nature,
ship will demand the leadership of mayors,
require cooperation among adjacent com-
Governors and state legislatures.
munities. I propose a program of matching
grants to local governments for building new
INCENTIVES TO METROPOLITAN AREA
basic community facilities with an appro-
COOPERATION
priation of 100 million dollars for fiscal 1966.
These grants will be contingent upon com-
The federal government cannot, and
prehensive, areawide planning for future
should not, require the communities which
growth; and will be made only for projects
make up a metropolitan area to cooperate
consistent with such planning.
against their will in the solution of their
One of the greatest handicaps to sound
problems. But we can offer incentives to
programs for future needs is the difficulty of
metropolitan area planning and cooperation.
obtaining desirable land for public buildings
We can help those who want to make the
and other facilities. As growth is foreseen
effort but lack the trained personnel and
it should be possible to acquire land in ad-
other necessary resources. And the new
vance of its actual use. Thus, when the need
Department should have regional repre-
arises, the land will be there. I recommend
sentatives in our metropolitan areas to assist,
a federal program for financial assistance
where assistance is requested, in the devel-
to help in this advance acquisition of land.
opment of metropolitan area plans.
Federal grants would be made available to
We already have federal programs in
cover the interest charges for five years on
which assistance depends upon the comple-
loans obtained by public bodies. Thus we
tion of soundly conceived metropolitan area
will cover the costs during the period before
plans, such as the mass transportation pro-
the facilities are constructed.
gram passed by the 88th Congress. This
Last year alone one million acres were
program strikes at the heart of one of our
urbanized. As our cities spread, far too
most critical and urgent needs-a trans-
often we create the ugliness and waste which
portation system which can relieve conges-
we call urban sprawl. At times we find we
tion and make it possible for people to travel
have built new slum areas in our suburbs.
with comparative ease to places of work,
Some of our programs are designed to stem
learning and pleasure.
this tide by helping city governments to
I am proposing other programs which will
plan their growth. But we must continue
also require sound, long-range development
to depend upon the private developer and
programs as a condition of federal assist-
lender for most of our construction. And
ance. Wherever it can be done without
they sometimes lack the economic resources
leaving vital needs unmet, existing programs
to ensure high standards of development. I
234
Lyndon B. Johnson, 1965
Mar. 2 [90]
therefore recommend a program of federally
mand of many of our cities. To help meet
insured private loans, backed by Federal
this need I propose to establish an Institute
Mortgage purchases where necessary, to fi-
of Urban Development as part of the new
nance the acquisition and development of
department.
land for entire new communities and
This Institute will help support training
planned subdivisions.
of local officials in a wide range of adminis-
This program should enable us to help
trative and program skills. It will admin-
build better suburbs. And it will also make
ister grants to states and cities for studies
it easier to finance the construction of brand
and the other basic work which are the
new communities on the rim of the city.
foundation of long-term programs. And
Often such communities can help break the
it will support research aimed especially at
pattern of central city ghettos by providing
reducing the costs of building and home
low and moderate income housing in subur-
construction through the development of
ban areas.
new technology.
This program will be complemented with
a program of federal financial assistance
TEMPORARY NATIONAL COMMISSION
to state land development agencies. Under
this program public bodies would acquire
Good planning for our metropolitan areas
land, install basic facilities, and then re-sell
will take not only determination, the spirit
the improved land to private builders for the
of cooperation and added resources. It will
construction of suburbs or new communities.
also take knowledge, more knowledge than
All of these programs would be depend-
we have now. We need to study the struc-
ent upon the existence of area-wide planning
ture of building codes across the country:
for growth to which the aided developments
their impact on housing costs, how building
must conform. They are designed to stim-
codes can be simplified and made more
ulate the farsighted planning for future
uniform, and how housing codes might be
growth which is necessary if we are to pre-
more effectively enforced to help eliminate
vent sprawl and new slums, and to create
slums.
standards which will guarantee a decent
Zoning regulations also affect both the
environment for our future city dwellers
cost and pattern of development. We must
whatever their race or income. In addition,
better learn how zoning can be made con-
these programs should enable us to build
sistent with sound urban development.
better suburbs, since it will be possible to
Few factors have greater impact on cost,
acquire land and improve it before the im-
on land speculation and on the ability of
minent approach of the city has sent costs
private enterprise to respond to the public
skyrocketing upward.
interest, than local and federal tax policies.
These too must be examined to determine
RESOURCES FOR PLANNING
how they can best serve the public interest.
Finally, we must begin to develop better
To plan for the growth and development
and more realistic standards for suburban
of an entire metropolitan area takes a wide
development. Even where local authorities
range of skills and a large number of trained
wish to prevent sprawl and blight, to pre-
people. These vital human resources are
serve natural beauty and ensure decent, du-
in short supply. They are beyond the com-
rable housing they find it difficult to know
235
[90] Mar. 2
Public Papers of the Presidents
what standards should be expected of private
After World War II we worked to re-
builders. We must examine what kind of
vitalize the housing market and provide
standards are both economically feasible
homes for a growing number of our people.
and will provide liveable suburbs.
This effort has been successful far beyond
To examine all these problems I recom-
our initial hopes. However, the problem
mend the establishment of a Temporary
now has a different shape. It is not enough
National Commission on Codes, Zoning,
simply to build more and more units of
Taxation and Development Standards. I
housing. We must build neighborhoods and
predict that the body masked by such an
communities. This means combining con-
unwieldy name may emerge with ideas and
struction with social services and commu-
instruments for a revolutionary improve-
nity facilities. It means to build so that
ment in the quality of the American city.
people can live in attractive surroundings
This entire range of programs is designed
sharing a strong sense of community.
to help us begin to think and act across
To meet new objectives we must work to
historic boundaries to enrich the life of the
re-direct, modernize and streamline our
people of our metropolitan areas. We do
housing programs. I will ask the Con-
not believe such planning is a cure-all or a
gress to begin the process this year, while
panacea. It can sometimes be a slender reed.
continuing those programs which are provid-
It must be flexible and open to change. And
ing necessary assistance.
we cannot wait for completed plans before
We hope to achieve a large increase of
trying to meet urgent needs in many areas.
homes for low and moderate income fami-
But it will teach us to think on a scale as
lies-those in greatest need of assistance-
large as the problem itself, and act to pre-
through an array of old and new instruments
pare for the future as well as to repair the
designed to work together toward a single
past.
goal.
I hope that, as time goes by, more and
-To insist on stricter enforcement of
more of our federal programs can be brought
housing codes by communities receiving fed-
into harmony with metropolitan area pro-
eral aid, thus mounting an intensified attack
grams. For in this approach lies one of our
on slums.
brightest hopes for the effective use of local
But such insistence is not realistic, and
as well as federal resources in improving the
often not desirable, unless we can provide
American City.
realistic alternatives to slum housing. We
will do this by:
THE PHYSICAL ENVIRONMENT
-providing rent supplements for fami-
lies across a wide range of lower and mod-
We owe the quality of American housing
erate income brackets so they can afford de-
to the initiative and vitality of our private
cent housing.
housing industry. It has provided the homes
-providing rent supplement assistance to
which have made most of our citizens the
those forced out of their homes by code en-
best housed people in the world. Our fed-
forcement and all forms of federally assisted
eral housing programs are designed to work
government action, from highways to urban
in support of private effort, and to meet the
renewal.
critical needs which can only be met through
-using both urban renewal funds and
government action.
public housing funds to rehabilitate exist-
236
Lyndon B. Johnson, 1965
Mar. 2 [90]
ing housing and make it available to low and
Second, the payment can be keyed to the
moderate income families. There is no rea-
income of the family. Those with lower
son to tear down and rebuild if existing hous-
incomes will receive a greater supplement.
ing can be improved and made desirable.
Under present direct loan programs the
-emphasizing residential construction
amount of the subsidy is the same for all
and rehabilitation on a neighborhood-wide
who live in a federally assisted development
scale in the urban renewal program.
regardless of individual need.
These instruments, combined with exist-
Third, the amount of assistance can be
ing public housing and direct loan programs,
reduced as family income rises. It can be
will greatly strengthen our existing effort.
ended completely when income reaches an
They should offer direct assistance to the
adequate level. Thus we will not end up,
housing of one million families over the
as is sometimes the case, helping those who
next four years. Moreover they will im-
no longer need help.
mensely add to our flexibility in the process
Fourth, it will be unnecessary to evict
of building neighborhoods.
from their homes those whose income has
risen above the point of need. This will
RENT SUPPLEMENTS
eliminate what is often a great personal
hardship.
The most crucial new instrument in our
Fifth, since the supplement is flexible it
effort to improve the American city is the
will permit us to encourage housing in which
rent supplement.
families of different incomes, and in dif-
Up to now government programs for low
ferent age groups, can live together. It will
and moderate income families have concen-
make it unnecessary for the government to
trated on either direct financing of construc-
assist and even require the segregation by
tion; or on making below-the-market-rate
income level which detracts from the variety
loans to private builders. We now propose
and quality of urban life.
to add to these programs through direct pay-
In the long run this may prove the most
ment of a portion of the rent of needy indi-
effective instrument of our new housing
viduals and families.
policy. In order to give it a fair chance
The homes themselves will be built by
we are limiting it to carefully designed
private builders, with Federal Housing Ad-
categories of need.
ministration insurance, and, where neces-
-in a program of rental and cooperative
sary, mortgage purchases by the Federal
housing for those low and moderate income
National Mortgage Association. The ma-
families displaced by government action or
jor federal assistance will be the rent sup-
now living in substandard housing. The
plement payment for each eligible family.
subsidy will help them pay rent or meet
This approach has immense potential ad-
payments on a federally insured mortgage.
vantages over low-interest loan programs:
-in a program of home ownership for
First, its flexibility will allow us to help
those displaced or living in substandard
people across a much broader range of in-
housing who display a capacity for increas-
come than has hitherto been possible. And
ing income and eventually owning their
it will therefore make it possible significantly
own home.
to increase the supply of housing available
-in a program to provide a broader range
to those of moderate income.
of housing for the elderly with inadequate
237
[90]
Mar.
2
Public Papers of the Presidents
incomes. The existing direct loan program
under urban renewal, designed to help rescue
for the elderly will continue at its existing
our existing housing from blight and decay.
level with the funds already provided by
the Congress. I intend to ensure a steadily
EXISTING PROGRAMS
increasing supply of federally assisted hous-
ing for older Americans.
I ask Congress to continue, on a modi-
On this basis our rent supplement pro-
fied basis, the existing housing programs
gram should finance more than 500,000
which have proven their ability to meet im-
homes over the next four years, while im-
portant needs. But I also wish to state my
proving our ability to make these homes
intention to reduce or eliminate these pro-
serve the social needs of those who live in
grams whenever new and more flexible in-
them. If it works as well as we expect, it
struments have shown they can do a better
should be possible to phase out most of our
job.
existing programs of low-interest loans.
The public housing program should be
continued with an authorization ample
REHABILITATION
enough to permit an increase in the number
of new units as well as to conduct a program
We have concentrated almost all our past
of rehabilitation.
effort on building new units, when it is of-
1 ask the continuation, at the rate of 40,000
ten possible to improve, rebuild and rehabili-
additional units for fiscal 1966, of the pro-
tate existing homes with less cost and less
gram of below market interest rate mort-
human dislocation. Even some areas now
gage purchases for housing for moderate
classed as slums can be made decent places
income families. At the same time we must
to live with intensive rehabilitation. In this
recognize that the benefits of this program
way it may often be possible to meet our
are decreasing as the rising costs of federal
housing objectives without tearing people
borrowing narrows the difference between
away from their familiar neighborhoods and
the interest we ask and that demanded in the
friends. Sometimes the same objective can
private market.
be achieved by helping local authorities to
I urge continued support for our college
lease standard homes for low rent families.
housing program which is struggling to
I recommend a change in the public hous-
keep up with the needs of a rising volume
ing formula so that we can more readily use
of students.
public housing funds to acquire and rehabil-
1 ask that our urban renewal program be
itate existing dwellings-and to permit lo-
increased to a level of 75° million dollars a
cal authorities to lease standard housing for
year by 1968. This program has done much
low-rent families. This will assist particu-
to help our cities. But we have also learned,
larly in providing housing for large families.
through hard experience, that there is more
I recommend the use of urban renewal
to eliminating slums and building neighbor-
funds to permit low-income homeowners to
hoods than knocking down old buildings
repair their homes and non-profit sponsors
and putting up new ones.
to rehabilitate and operate homes for low-
Through using funds for rebuilding exist-
income families at rents they can afford.
ing housing and by providing more and
I have recommended the appropriation of
better assistance to families forced out by
funds for low-interest rehabilitation loans
urban renewal, we can make this program
238
Lyndon B. Johnson, 1965
Mar. 2 [90]
better serve the people it is meant to help.
ing that in cities participating in the War
We will continue to use urban renewal to
Against Poverty these grants be made only
help revitalize the business and industrial
when they are consistent with an approved
districts which are the economic base of
community action program.
the central city. But this program should
be more and more concentrated on the de-
BEAUTIFYING THE CITY
velopment of residential areas so that all
our tools-from the poverty program, to
In my message on natural beauty I pointed
education and construction-can be used
out that much of the effort of the new con-
together to create meaningful and liveable
servation would be directed toward the city.
communities within the city.
I recommend changes in the open space
To accomplish this purpose cities must
program, broadening its authority to help
develop long-range programs which take
local governments acquire and clear areas
into account human as well as construction
to create small parks and squares, malls and
needs. Therefore I recommend that every
playgrounds. In addition I recommend spe-
city of 50,000 or larger develop a Community
cial grants to cities for landscaping, the
Renewal Program as a condition of federal
planting of trees, the improvement of city
help for urban renewal. These programs
parks and other measures to bring beauty
will provide an orderly schedule and pattern
and nature to the city dweller.
for development of areas of blight and de-
But beauty is not simply a matter of trees
cay-combining social and educational serv-
and parks. The attractiveness of our cities
ices with the planning of physical construc-
depends upon the design and architecture
tion.
of buildings and blocks and entire urban
neighborhoods. I intend to take further
NEIGHBORHOOD FACILITIES
steps to ensure that federal construction
does not contribute to drab and ugly archi-
A community must offer added dimen-
tecture. But in this field, as in so many
sions to the possibilities of daily life. It
others, most of our hopes rest on the concern
must meet the individual's most pressing
and work of local governments and private
needs and provide places for recreation and
citizens.
for meeting with neighbors. I therefore
recommend a new program of matching
CONCLUSION
grants to help local governments build multi-
purpose neighborhood centers for health
This message can only deal with a frag-
and recreation and community activity. Re-
ment of the effort increasingly directed to-
lated to our housing programs these centers
ward improving the quality of life in the
can help urban renewal and public housing
American city. The creation of jobs, the war
meet the goal of creating a meaningful
against poverty, support for education and
community.
health, programs for natural beauty and
At the same time these centers must not
anti-pollution are all part of an effort to build
be isolated expressions of interest. They
the great cities which are at the foundation
should be a part of an overall program for
of our hopes for a Great Society.
improving the life of people in disadvan-
Nor can we forget that most of our pro-
taged areas. Therefore, I am recommend-
grams are designed to help all the people,
239
[90] Mar. 2
Public Papers of the Presidents
in every part of the country. We do not in-
officials to act with generosity of vision and
tend to forget or neglect those who live on
spaciousness of imagination.
9
the farms, in villages, and in small towns.
I believe today's proposals are an impor-
Coordinated with the Department of Ag-
tant start along that road. They should help
riculture, the programs I have outlined above
us to look upon the city as it really is: a
can do much to meet rural America's need
vast and myriad complex of homes and com-
for housing and the development of better
munities, people and their needs, hopes and
communities.
frustrations. It can liberate the expecta-
Many of these programs are intended to
tions of men, or it can crush them in body
a
help the poor and those stripped of opportu-
and spirit.
nity. But our goal is more ambitious than
For underneath all the rest, at the very
that. It is nothing less than to improve the
bottom of all we do, is the effort to protect,
quality of life for every American. In this
under the conditions of the modern world,
S
quest the future of the American city will
values as old as this nation and the civili-
play the most vital role. There are a few
zation from which it comes. We work in
whose affluence enables them to move
our cities to satisfy our needs for shelter and
through the city guarded and masked from
work and the ability to command a satis-
the realities of the life around them. But
fying way of life. We wish to create a city
0
they are few indeed. For the rest of us the
where men and women can feed the hunger
quality and condition of our lives is in-
of the spirit for beauty and have access to
exorably fixed by the nature of the
the best of man's work; where education and
community in which we live. Slums
the richness of diversity expands our hori-
and ugliness, crime and congestion, growth
zons and extends our expectations. But we
and decay inevitably touch the life of all.
also look for something more.
Those who would like to enjoy the lovely
The American city should be a collection
parks of some of our great cities soon realize
of communities where every member has a
that neither wealth nor position fully pro-
right to belong. It should be a place where
tects them against the failures of society.
every man feels safe on his streets and in the
Even among strangers, we are neighbors.
house of his friends. It should be a place
We are still only groping toward solution.
where each individual's dignity and self-
The next decade should be a time of experi-
respect is strengthened by the respect and
mentation. Our cities will not settle into
affection of his neighbors. It should be a
a drab uniformity directed from a single
place where each of us can find the satisfac-
center. Each will choose its own course of
tion and warmth which comes only from
development-whether it is to unite com-
being a member of the community of man.
munities or build entirely new metropolitan
This is what man sought at the dawn of
areas. We will seek new ways to structure
civilization. It is what we seek today.
our suburbs and our transportation; new
LYNDON B. JOHNSON
techniques for introducing beauty and im-
The White House
proving homes. This is an effort which must
March 2, 1965
command the most talented and trained of
NOTE: For remarks upon signing related legislation,
our people, and call upon administrators and
see Items 415, 503.
240
Lyndon B. Johnson, 1965
Sept. 9 [503]
in liberating men from tragic want, disease,
NOTE: The Foreign Assistance and Related Agen-
and oppression.
cies Appropriation Act, 1966, was approved by the
President on October 20, 1965 (see Item 570).
503 Remarks at the Signing of Bill Establishing a Department of
Housing and Urban Development. September 9, 1965
Mr. Vice President, Members of the Con-
Now that day is gone. It never will re-
gress, most distinguished mayors, ladies and
turn.
gentlemen:
In less than a lifetime-in less than my
This is a very rare and a very proud occa-
own 57 years-America has become a highly
sion. We are bringing into being today a
urbanized Nation, and we must face the
very new and needed instrument to serve all
many meanings of this new America.
the people of America.
Social change in our country is often faster
This legislation establishes the 11th de-
than the mind of a generation can compre-
partment of our Federal Government-the
hend. But the pace of our urbanization has
Department of Housing and Urban Devel-
been stunning. It will move still faster in
opment.
the immediate years ahead.
When our Nation was born, the only de-
Between now and the end of this century
partments of Government were State and
our urban population will double. City land
Treasury and War. Our country and our
will double.
Government have grown greatly since that
In the next 35 years we must literally build
time. But we have been sparing in creating
a second America-putting in place as many
new and additional departments except when
houses, schools, apartments, parks, and of-
the need has been clear and compelling and
fices as we have built through all the time
continuing. That is clearly the case for this,
since the Pilgrims arrived on these shores.
the newest department.
The physical challenge is awesome. But
The America of our Founding Fathers
there is a challenge to the spirit that is even
was, of course, a rural America. The vir-
greater and more demanding.
tues and values of our rural heritage have
It is not enough for us to erect towers of
shaped and strengthened the American char-
stone and glass, or to lay out vast suburbs
acter for all of our 189 years. Our debt to
of order and conformity. We must seek and
this heritage is deep and abiding, and we
we must find the ways to preserve and to
shall honor it always.
perpetuate in the city the individuality, the
When Thomas Jefferson spoke of rural
human dignity, the respect for individual
virtues, cities were insignificant on the
rights, the devotion to individual responsi-
countryside of this continent. Only 5 per-
bility that has been part of the American
cent of our people lived then in cities or vil-
character and the strength of the American
lages. America was the land of the farmer,
system.
the woodsman, the hunter and mountaineer.
Our cities and our new urban age must
Even a century ago when Abraham Lincoln
not be symbols of a sordid society. The his-
asked the Congress to create a Department
tory of every civilization teaches us that
of Agriculture, fewer than 20 percent of our
those who do not find new means to respond
people then lived in cities.
to new challenges will perish or decay.
985
[503] Sept. 9
Public Papers of the Presidents
Unless we seize the opportunities avail-
this is a historic occasion. All who have been
able now, the fears some have of a nightmare
a part of it can forever be proud of it.
society could materialize.
I am grateful, particularly to those Mem-
Unless we match our imagination and our
bers of the Congress whose energies and ef-
courage and our affluence, we could fail both
forts have made this ceremony possible to-
our past and our posterity.
day: the distinguished Vice President; Sen-
So the enactment of this legislation, and
ator Ribicoff; Senator Muskie; Senator
so many other measures of this Congress,
Clark; the dedicated Chairman of the House
represents the unified determination of this
Committee, Congressman Bill Dawson; his
generation to preserve the best of the past
colleagues, Congressman Fascell and Con-
by preparing to make the future better still.
gressman Reuss; and a dozen more Con-
With this legislation, we are-as we must
gressmen and Senators I do not have time
always-going out to meet tomorrow and
to mention. They all, the Congress, all of
master its opportunities before its obstacles
them, had a vital bipartisan support from a
master us.
host of their fellow Members.
In the days of our population's westward
This is a wise and this is a just and this is
movement, we created the Department of In-
a progressive measure for all America, and
terior. The rise of great industry brought
I am honored to sign it this morning.
the response of a Department of Commerce
Thank you.
and a Department of Labor. The growth
NOTE: The President spoke at 10:06 a.m. in the
of our world responsibilities made it neces-
Rose Garden at the White House. In his opening
sary to unify our security forces in a Depart-
words he referred to Vice President Hubert H.
ment of Defense. President Eisenhower saw
Humphrey.
During his remarks he referred to Senator Abra-
that the magnitude of our health and educa-
ham Ribicoff of Connecticut, Senator Edmund S.
tion and welfare programs required a new
Muskie of Maine, Senator Joseph S. Clark of Pennsyl-
department devoted to their fulfillment.
vania, Representative William L. Dawson of Illinois,
Chairman of the House Committee on Government
So today we are taking the first step to-
Operations, Representative Dante B. Fascell of
ward organizing our system for a more ra-
Florida, and Representative Henry S: Reuss of
Wisconsin.
tional response to the pressing challenge
As enacted, the Department of Housing and
of urban life. This is a historic action and
Urban Development Act is Public Law 89-174 (79
Stat. 667).
504 Remarks at the Unveiling of the Design for a Commemorative
Stamp Honoring Adlai Stevenson. September 9, 1965
Members of the Stevenson family, Mr. Vice
the memory of Eleanor Roosevelt with a
President, the distinguished leadership and
commemorative stamp. He said of her that
Members of the Congress, Postmaster Gen-
she was a symbol of man's humanity to man.
eral Gronouski, friends and associates of
So, today, in honoring him we honor an-
Adlai Stevenson, ladies and gentlemen:
other whose life speaks to us of the brighter
We meet here today to share an act of
side of man's nature-the side of service and
remembrance. Less than 2 years ago, Adlai
the love of our fellows.
Stevenson took part in a ceremony honoring
I will not now add to the many words
986
REMARKS ON
Econ OPPORTUNITY
ACT OF -64
Lyndon B. Johnson, 1963-1964
Mar. 16 [219]
to make those decisions and started hearing
where the average per capita income is in
from the Congress, that the Presidency
excess of $200 per month, when there are
looked a little different when you are in the
only six nations in the entire world that
Presidency than it did when you are in the
have as much as $80 per month. And while
Congress, and vice versa.
the Soviet Union has three times as many
Mr. Lawrence: Mr. President, Thomas
tillable acres of land as we have and a popu-
Jefferson referred to the office as a splendid
lation that's in excess of ours and a great
misery.
many resources that we don't have that if
Harry Truman used to talk about it as if
properly developed would exceed our poten-
it were a prison cell.
tial in water and oil and so forth, neverthe-
Do you like it?
less we have one thing they don't have, and
THE PRESIDENT. I am doing the best I can
that is our system of private enterprise, free
in it, and I am enjoying what I am doing.
enterprise, where the employer, hoping to
Thomas Jefferson said the second office of
make a little profit, the laborer hoping to
the land was an honorable and easy one.
justify his wages, can get together and make
The Presidency was a splendid misery.
a better mousetrap.
But I found great interest in serving in
They have developed this into the most
both offices, and it carries terrific and tre-
powerful and the leading nation in the
mendous and awesome responsibilities but I
world, and I want to see it preserved. And
am proud of this Nation, and I am so grate-
I have an opportunity to do something about
ful that I could have an opportunity that I
it as President.
have had in America that I want to give my
And I may not be a great President, but as
life seeing that the opportunity is perpetuated
long as I am here, I am going to try to be a
for others.
good President, and do my dead level best to
I am so proud of our system of govern-
see this system preserved because when the
ment, of our free enterprise, where our in-
final chips are down, it is not going to be the
centive system and our men who head our
number of people we have or the number of
big industries are willing to get up at day-
acres or the number of resources that win,
light and work until midnight to offer em-
the thing that is going to make us win is our
ployment and create new jobs for people,
system of government.
where our men working there will try to get
Mr. Brinkley: Thank you, Mr. President.
decent wages but will sit across the table and
NOTE: This is the text of the interview as broadcast
not act like cannibals, but will negotiate and
over the major networks on March 15. It is based
reason things out together.
on a video tape recorded in the President's office the
preceding day.
I am so happy to be a part of a system
219 Special Message to the Congress Proposing a Nationwide
War on the Sources of Poverty. March 16, 1964
To the Congress of the United States:
were a small country struggling for survival
We are citizens of the richest and most
on the margin of a hostile land.
fortunate nation in the history of the world.
Today we have established a civilization
One hundred and eighty years ago we
of free men which spans an entire continent.
375
[219]
Mar.
I6
Public Papers of the Presidents
With the growth of our country has come
a complex society. He does not know how
opportunity for our people-opportunity to.
to acquire those skills. He faces a mounting
educate our children, to use our energies in
sense of despair which drains initiative and
productive work, to increase our leisure-
ambition and energy.
opportunity for almost every American to
Our tax cut will create millions of new
hope that through work and talent he could
jobs-new exits from poverty.
create a better life for himself and his family.
But we must also strike down all the bar-
The path forward has not been an easy
riers which keep many from using those
one.
exits.
But we have never lost sight of our goal:
The war on poverty is not a struggle
an America in which every citizen shares all
simply to support people, to make them de-
the opportunities of his society, in which
pendent on the generosity of others.
every man has a chance to advance his wel-
It is a struggle to give people a chance.
fare to the limit of his capacities.
It is an effort to allow them to develop and
We have come a long way toward this
use their capacities, as we have been allowed
goal.
to develop and use ours, so that they can
We still have a long way to go.
share, as others share, in the promise of this
The distance which remains is the measure
nation.
of the great unfinished work of our society.
1)
We do this, first of all, because it is right
To finish that work I have called for a na-
that we should.
tional war on poverty. Our objective: total
From the establishment of public educa-
victory.
tion and land grant colleges through agricul-
There are millions of Americans-one
tural extension and encouragement to in-
fifth of our people-who have not shared
dustry, we have pursued the goal of a nation
in the abundance which has been granted to
with full and increasing opportunities for
most of us, and on whom the gates of oppor-
all its citizens.
tunity have been closed.
The war on poverty is a further step in that
What does this poverty mean to those who
pursuit.
endure it?
We do it also because helping some will
It means a daily struggle to secure the
increase the prosperity of all.
necessities for even a meager existence. It
Our fight against poverty will be an in-
means that the abundance, the comforts, the
vestment in the most valuable of our re-
opportunities they see all around them are
sources-the skills and strength of our
beyond their grasp.
people.
Worst of all, it means hopelessness for the
And in the future, as in the past, this in-
young.
vestment will return its cost many fold to
The young man or woman who grows up
our entire economy.
without a decent education, in a broken
If we can raise the annual earnings of IO
home, in a hostile and squalid environment,
million among the poor by only $1,000 we
in ill health or in the face of racial injustice-
will have added I4 billion dollars a year to
that young man or woman is often trapped
our national output. In addition we can
in a life of poverty.
make important reductions in public as-
He does not have the skills demanded by
sistance payments which now cost us 4
376
Lyndon B. Johnson, 1963-1964
Mar. I6 [219]
billion dollars a year, and in the large costs
through the establishment, under my direc-
of fighting crime and delinquency, disease
tion, of the Office of Economic Opportunity,
and hunger.
a national headquarters for the war against
This is only part of the story.
poverty.
Our history has proved that each time we
This is how we propose to create these
broaden the base of abundance, giving more
opportunities.
people the chance to produce and consume,
First we will give high priority to helping
we create new industry, higher production,
young Americans who lack skills, who have
increased earnings and better income for all.
not completed their education or who cannot
Giving new opportunity to those who have
complete it because they are too poor.
little will enrich the lives of all the rest.
The years of high school and college age
Because it is right, because it is wise, and
are the most critical stage of a young per-
because, for the first time in our history, it
son's life. If they are not helped then, many
is possible to conquer poverty, I submit, for
will be condemned to a life of poverty which
the consideration of the Congress and the
they, in turn, will pass on to their children.
country, the Economic Opportunity Act of
I therefore recommend the creation of a
1964.
Job Corps, a Work-Training Program, and
The Act does not merely expand old pro-
a Work Study Program.
grams or improve what is already being
A new national Job Corps will build to-
done.
ward an enlistment of 100,000 young men.
It charts a new course.
They will be drawn from those whose back-
It strikes at the causes, not just the con-
ground, health and education make them
sequences of poverty.
least fit for useful work.
It can be a milestone in our one-hundred
Those who volunteer will enter more than
eighty year search for a better life for our
100 Camps and Centers around the country.
people.
Half of these young men will work, in the
This Act provides five basic opportunities.
first year, on special conservation projects
It will give almost half a million under-
to give them education, useful work experi-
privileged young Americans the opportunity
ence and to enrich the natural resources of
to develop skills, continue education, and
the country.
find useful work.
Half of these young men will receive, in
It will give every American community
the first year, a blend of training, basic edu-
the opportunity to develop a comprehensive
cation and work experience in Job Training
plan to fight its own poverty-and help them
Centers.
to carry out their plans.
These are not simply camps for the under-
It will give dedicated Americans the op-
privileged. They are new educational in-
portunity to enlist as volunteers in the war
stitutions, comparable in innovation to the
against poverty.
land grant colleges. Those who enter them
It will give many. workers and farmers
will emerge better qualified to play a pro-
the opportunity to break through particular
ductive role in American society.
barriers which bar their escape from poverty.
A new national Work-Training Program
It will give the entire nation the oppor-
operated by the Department of Labor will
tunity for a concerted attack on poverty
provide work and training for 200,000
377
[219] Mar. 16
Public Papers of the Presidents
American men and women between the ages
and know best how to deal with those
of 16 and 2I. This will be developed
problems.
through state and local governments and
These plans will be local plans striking at
non-profit agencies.
the many unfilled needs which underlie pov-
Hundreds of thousands of young Ameri-
erty in each community, not just one or two.
cans badly need the experience, the income,
Their components and emphasis will differ
and the sense of purpose which useful full
as needs differ.
or part-time work can bring. For them such
These plans will be local plans calling
work may mean the difference between fin-
upon all the resources available to the com-
ishing school or dropping out. Vital com-
munity-federal and state, local and private,
munity activities from hospitals and play-
human and material.
grounds to libraries and settlement houses
And when these plans are approved by
are suffering because there are not enough
the Office of Economic Opportunity, the
people to staff them.
federal government will finance up to 90%
We are simply bringing these needs
of the additional cost for the first two years.
together.
The most enduring strength of our nation
A new national Work-Study Program op-
is the huge reservoir of talent, initiative and
erated by the Department of Health, Edu-
leadership which exists at every level of our
cation, and Welfare will provide federal
society.
funds for part-time jobs for 140,000 young
Through the Community Action Program
Americans who do not go to college because
we call upon this, our greatest strength, to
they cannot afford it.
overcome our greatest weakness.
There is no more senseless waste than the
Third, I ask for the authority to recruit
waste of the brainpower and skill of those
and train skilled volunteers for the war
who are kept from college by economic cir-
against poverty.
cumstance. Under this program they will,
Thousands of Americans have volunteered
in a great American tradition, be able to
to serve the needs of other lands.
work their way through school.
Thousands more want the chance to serve
They and the country will be richer for it.
the needs of their own land.
Second, through a new Community Ac-
They should have that chance.
tion program we intend to strike at poverty
Among older people who have retired, as
at its source-in the streets of our cities and
well as among the young, among women as
on the farms of our countryside among the
well as men, there are many Americans who
very young and the impoverished old.
are ready to enlist in our war against poverty.
This program asks men and women
They have skills and dedication. They
throughout the country to prepare long-
are badly needed.
range plans for the attack on poverty in their
If the State requests them, if the com-
own local communities.
munity needs and will use them, we will
These are not plans prepared in Wash-
recruit and train them and give them the
ington and imposed upon hundreds of
chance to serve.
different situations.
Fourth, we intend to create new oppor-
They are based on the fact that local
tunities for certain hard-hit groups to break
citizens best understand their own problems,
out of the pattern of poverty.
378
Lyndon B. Johnson, 1963-1964
Mar. 16 [219]
Through a new program of loans and
Training Act and the Vocational Education
guarantees we can provide incentives to those
Act for youth.
who will employ the unemployed.
There are programs to protect those who
Through programs of work and retrain-
are specially vulnerable to the ravages of
ing for unemployed fathers and mothers we
poverty-hospital insurance for the elderly,
can help them support their families in dig-
protection for migrant farm workers, a food
nity while preparing themselves for new
stamp program for the needy, coverage for
work.
millions not now protected by a minimum
Through funds to purchase needed land,
wage, new and expanded unemployment
organize cooperatives, and create new and
benefits for men out of work, a Housing and
adequate family farms we can help those
Community Development bill for those seek-
whose life on the land has been a struggle
ing decent homes.
without hope.
Finally there are programs which help the
Fifth, I do not intend that the war against
entire country, such as aid to education
poverty become a series of uncoordinated
which, by raising the quality of schooling
and unrelated efforts-that it perish for lack
available to every American child, will give
of leadership and direction.
a new chance for knowledge to the children
Therefore this bill creates, in the Execu-
of the poor.
tive Office of the President, a new Office of
I ask immediate action on all these pro-
Economic Opportunity. Its Director will be
grams.
my personal Chief of Staff for the War
What you are being asked to consider is
against poverty. I intend to appoint Sargent
not a simple or an easy program. But pov-
Shriver to this post.
erty is not a simple or an easy enemy.
He will be directly responsible for these
It cannot be driven from the land by a
new programs. He will work with and
single attack on a single front. Were this
through existing agencies of the government.
so we would have conquered poverty long
This program-the Economic Opportuni-
ago.
ty Act-is the foundation of our war against
Nor can it be conquered by government
poverty. But it does not stand alone.
alone.
For the past three years this government
For decades American labor and Amer-
has advanced a number of new proposals
ican business, private institutions and private
which strike at important areas of need and
individuals have been engaged in strengthen-
distress.
ing our economy and offering new opportu-
I ask the Congress to extend those which
nity to those in need.
are already in action, and to establish those
We need their help, their support, and
which have already been proposed.
their full participation.
There are programs to help badly dis-
Through this program we offer new in-
tressed areas such as the Area Redevelopment
centives and new opportunities for cooper-
Act, and the legislation now being prepared
ation, so that all the energy of our nation,
to help Appalachia.
not merely the efforts of government, can
There are programs to help those without
be brought to bear on our common enemy.
training find a place in today's complex
Today, for the first time in our history,
society-such as the Manpower Development
we have the power to strike away the bar-
379
[219] Mar. I6
Public Papers of the Presidents
riers to full participation in our society.
weapons, to try our energy and ideas and
Having the power, we have the duty.
imagination for the many battles yet to
The Congress is charged by the Constitu-
come. As conditions change, and as ex-
tion to "provide
for the general wel-
perience illuminates our difficulties, we will
fare of the United States." Our present
be prepared to modify our strategy.
abundance is a measure of its success in
And this program is much more than a
fulfilling that duty. Now Congress is being
beginning.
asked to extend that welfare to all our people.
Rather it is a commitment. It is a total
The President of the United States is
commitment by this President, and this Con-
President of all the people in every section
gress, and this nation, to pursue victory over
of the country. But this office also holds a
the most ancient of mankind's enemies.
special responsibility to the distressed and
On many historic occasions the President
disinherited, the hungry and the hopeless
has requested from Congress the authority
of this abundant nation.
to move against forces which were endan-
It is in pursuit of that special responsibil-
gering the well-being of our country.
ity that I submit this Message to you today.
This is such an occasion.
The new program I propose is within our
On similar occasions in the past we have
means. Its cost of 97° million dollars is
often been called upon to wage war against
I percent of our national budget-and every
foreign enemies which threatened our free-
dollar I am requesting for this program is
dom. Today we are asked to declare war
already included in the budget I sent to Con-
on a domestic enemy which threatens the
gress in January.
strength of our nation and the welfare of
But we cannot measure its importance by
our people.
its cost.
If we now move forward against this
For it charts an entirely new course of
enemy-if we can bring to the challenges of
hope for our people.
peace the same determination and strength
We are fully aware that this program will
which has brought us victory in war-then
not eliminate all the poverty in America in a
this day and this Congress will have won
few months or a few years. Poverty is
a secure and honorable place in the history
deeply rooted and its causes are many.
of the nation, and the enduring gratitude of
But this program will show the way to
generations of Americans yet to come.
new opportunities for millions of our fellow
LYNDON B. JOHNSON
citizens.
It will provide a lever with which we can
NOTE: The draft bill and a section by section analysis
were released with the President's message. They
begin to open the door to our prosperity
are printed in House Document 243 (88th Cong.,
for those who have been kept outside.
2d sess.).
It will also give us the chance to test our
For the President's remarks upon signing the
Economic Opportunity Act of 1964, see Item 528.
380
[527] Aug. I9
Public Papers of the Presidents
ples have been laid aside, or that convictions
The 88th Congress will be always remem-
have been diluted.
bered as the Education Congress.
The opposite is much more nearly the
And I know how much pride and satis-
case.
faction that our late, beloved President John
But from full debate, from advocacy of
F. Kennedy would get tonight if he could
principles, from devotion to convictions,
only be here and see you and thank you
strength has been forged into the laws that
for helping him to see that his dreams came
have been enacted. This Congress has ex-
true.
pressed on the record the commitment of
You have responded to the needs of our
the American people to the pillars on which
cities with the mass transit legislation. The
our system and our society stand.
beauty and the values of our countryside will
Our economic system of private enterprise
be conserved by the wilderness bill, and
has received the most significant vote of
many more measures.
confidence in our times with the enactment
For classroom, city, and countryside, you
of the legislation reducing taxes for both
have made long strides toward meeting the
individuals and corporations. Eleven and
needs of our times and toward building a
one-half billion dollars have been returned
great society.
to the pockets of American families and
As your former colleague, as your Presi-
American enterprise-in the confidence that
dent now, as an American first and a parti-
private initiative would put these dollars
san second, I am proud and privileged to-
to work creating jobs, creating opportunity,
night to salute the Congress one and all.
and creating greater effectiveness in com-
Mrs. Johnson and I are indeed privileged
petition with the world.
to have a chance to say thanks to all of you
For 100 years, emancipation was a procla-
this evening.
mation but it was not a fact.
Thank you.
This Congress with the help and the sup-
NOTE: The President spoke in the evening on the
port and the votes from both sides of the
South Lawn at the White House at a reception for
aisle brought into being the most compre-
Members of the 88th Congress. In his opening
words he referred to Representative John J. Mc-
hensive Civil Rights Act in the last century.
Cormack of Massachusetts, Speaker of the House,
This act wrote into the book of law the
and Senator Mike Mansfield of Montana, Majority
equality of opportunity for all of our people.
Leader of the Senate. Early in his remarks he also
referred to Walter Cronkite of the Columbia Broad-
Our Nation's great commitment to uni-
casting System, Mrs. Nancy H. Dickerson of the Na-
versal education has received more support
tional Broadcasting Company, and Howard K.
from this Congress than from any other.
Smith of the American Broadcasting Company, who
had served as narrators for a musical program fea-
turing songs used in earlier political campaigns.
528 Remarks Upon Signing the Economic Opportunity
Act. August 20, 1964
My fellow Americans:
For so long as man has lived on this earth
On this occasion the American people and
poverty has been his curse.
our American system are making history.
On every continent in every age men have
988
Lyndon B. Johnson, 1963-1964
Aug. 20 [528]
sought escape from poverty's oppression.
will help poor farmers get back on their feet
Today for the first time in all the history
and help poor farmers stay on their farms.
of the human race, a great nation is able
It will help those small businessmen who
to make and is willing to make a commit-
live on the borderline of poverty. It will
ment to eradicate poverty among its people.
help the unemployed heads of families main-
Whatever our situation in life, whatever
tain their skills and learn new skills.
our partisan affiliation, we can be grateful
In helping others, all of us will really
and proud that we are able to pledge our-
be helping ourselves. For this bill will per-
selves this morning to this historic course.
mit us to give our young people an oppor-
We can be especially proud of the nature of
tunity to work here at home in constructive
the commitments that we are making.
ways as volunteers, going to war against
This is not in any sense a cynical proposal
poverty instead of going to war against for-
to exploit the poor with a promise of a hand-
eign enemies.
out or a dole.
All of this will be done through a program
We know-we learned long ago-that
which is prudent and practical, which is con-
answer is no answer.
sistent with our national ideals.
The measure before me this morning for
Every dollar authorized in this bill was
signature offers the answer that its title im-
contained in the budget request that I sent
plies-the answer of opportunity. For the
to the Congress last January. Every dollar.
purpose of the Economic Opportunity Act
spent will result in savings to the country
of 1964 is to offer opportunity, not an opiate.
and especially to the local taxpayers in the
For the million young men and women
cost of crime, welfare, of health, and of
who are out of school and who are out of
police protection.
work, this program will permit us to take
We are not content to accept the endless
them off the streets, put them into work
growth of relief rolls or welfare rolls. We
training programs, to prepare them for pro-
want to offer the forgotten fifth of our peo-
ductive lives, not wasted lives.
ple opportunity and not doles.
In this same sound, sensible, and respon-
That is what this measure does for our
sible way we will reach into all the pockets
times.
of poverty and help our people find their
Our American answer to poverty is not
footing for a long climb toward a better way
to make the poor more secure in their
of life.
poverty but to reach down and to help them
We will work with them through our com-
lift themselves out of the ruts of poverty and
munities all over the country to develop
move with the large majority along the
comprehensive community action pro-
high road of hope and prosperity.
grams-with remedial education, with job
The days of the dole in our country are
training, with retraining, with health and
numbered. I firmly believe that as of this
employment counseling, with neighborhood
moment a new day of opportunity is dawn-
improvement. We will strike at poverty's
ing and a new era of progress is opening
roots.
for us all.
This is by no means a program confined
And to you men and women in the Con-
just to our cities. Rural America is afflicted
gress who fought so long, so hard to help
deeply by rural poverty, and this program
bring about this legislation, to you private
989
[528]
Aug.
20
Public Papers of the Presidents
citizens in labor and in business who lent
who sponsored the bill and other supporters of the
us a helping hand, to Sargent Shriver and
antipoverty program. The President specifically
referred to Sargent Shriver, Director of the Peace
that band of loyal men and women who
Corps, who was later appointed Director of the
made up this task force that brings our
Office of Economic Opportunity.
dream into a reality today, we say "Thank
As enacted, the bill (S. 2642) is Public Law 88-
452 (78 Stat. 508).
you" for all the American people. In the
Earlier, on August 12, the White House released
days and years to come, those who have an
the text of a letter from the President to the Speaker
opportunity to participate in this program
of the House requesting appropriations to support
activities authorized by the Economic Opportunity
will vindicate your thinking and vindicate
Act, together with a letter from the Director of the
your action.
Bureau of the Budget outlining details of the ap-
Thank you very much.
propriation. The Supplemental Appropriation Act,
1965 (Public Law 88-635, 78 Stat. 1023), authoriz-
NOTE: The President spoke in midmorning in the
ing the appropriations, was approved by the Presi-
Rose Garden at the White House. Among those
dent on October 7, 1964.
attending the ceremony were Members of Congress
529 Special Message to the Congress on U.S. Participation
in the United Nations. August 20, 1964
To the Congress of the United States:
was accomplished on the United Nations
Pursuant to the provisions of the United
agenda for mankind-and of its unfinished
Nations Participation Act, I transmit here-
business.
with the eighteenth annual report covering
In transmitting this report to the Congress
United States participation in the United
I should like to add two observations which
Nations during 1963.
go beyond the scope of the objective record
This report describes in detail the day-to-
of U.N. activities during the year.
day, month-to-month work of the United
First, the extraordinary importance which
Nations system of agencies on behalf of
this Government attaches to the United Na-
peace and security, economic and social de-
tions was underscored by the fact that two
velopment, the trust territories, human
Presidents of the United States addressed the
rights and legal and constitutional develop-
same Assembly.
ments. It also reports on administrative
On September 20, President Kennedy
and financial matters.
went to the rostrum of the General Assembly
The 18th General Assembly was concerned
to tell the delegates of more than a hundred
with many of the most urgent problems of
countries that:
our times: peace and disarmament, national
"
the badge of responsibility in the
independence and human rights, and inter-
modern world is a willingness to seek peace-
national cooperation along a broad spectrum
ful solutions.
of human endeavor.
if either of our countries [the
As in other years and with other institu-
United States and the Soviet Union] is to be
tions, the U.N. record for 1963 was an
fully secure, we need a much better weapon
amalgam of progress and problems as the
than the H-bomb-a weapon better than
Organization sought to cope with many of
ballistic missiles or nuclear submarines-
the world's most basic and difficult issues.
and that better weapon is peaceful coopera-
This report is a factual accounting of what
tion."
990
Lyndon B. Johnson, 1967
Mar. 14 [114]
Industry and the Secretary of Commerce
continue its efforts towards accelerating the
meet annually for this purpose. He also as-
growth of a Pacific Community. President
sured the Prime Minister that the United
Johnson expressed appreciation for the initia-
States would cooperate with the Republic of
tive and important contributions made by
Korea to bring promptly to the attention of
the Republic of Korea in the evolution of
American private business interests the op-
the Pacific Community. He stressed the im-
portunities and possibilities for investment in
portance of solidarity and mutual support
Korea, both through commercial loans and
among the countries in the region and ex-
joint business ventures.
pressed the readiness of the United States
President Johnson and Prime Minister
Government to play its part in developing
Chung reaffirmed the conviction of their
the Pacific Community.
two governments that existing regional or-
President Johnson and Prime Minister
ganizations and institutions in the Pacific
Chung reaffirmed the strong ties of friend-
area should be strengthened and developed,
ship and mutual interest between the Re-
with the ultimate objective of creating a new
public of Korea and the United States and
Pacific Community, open to all nations pre-
pledged themselves anew to the maintenance
pared to live at peace and to cooperate and
and strengthening of those ties and to con-
work for the welfare of the people of Asia
tinued cooperation between their two gov-
and the Pacific, as agreed by Presidents
ernments in the economic, political, and
Johnson and Park in their joint statement in
military fields.
Seoul in November, 1966. President Johnson
On behalf of the members of his party
and Prime Minister Chung recalled the goals
and the Korean people, Prime Minister
of freedom as declared by the seven heads of
Chung expressed his deepest appreciation to
state at Manila last October and Prime Min-
President Johnson for the warm reception
ister Chung reaffirmed the determination of
and for the hospitality extended to him by
the government of the Republic of Korea to
President Johnson and the United States.
II4 Special Message to the Congress: America's Unfinished Business,
Urban and Rural Poverty.
March
14,
1967
To the Congress of the United States:
of their encironmevnt; and it is a bad
master.
The bad environment becomes
I. THE CHALLENGE
the heredity of the next generation."
These are the words of Jacob Riis, the
"The slum is as old as civilization. Civiliza-
Danish immigrant and American reformer,
tion implies a race to get ahead. In a race
written in 1902. We may wish that those
there are usually some who for one cause or
words applied only to the America of
another cannot keep up, or are thrust out
1902-but clearly they apply to the America
from among their fellows. They fall behind,
of the 1960's as well. They describe condi-
and when they have been left far in the rear
tions in parts of every large American city
they lose hope and ambition, and give up.
and in pockets of poverty throughout rural
Thenceforward, if left to their own re-
America where 43 percent of the Nation's
sources, they are the victims, not the masters,
poor live.
331
89-186-vol. 1-68-20
[114] Mar. I4
Public Papers of the Presidents
It was years after Jacob Riis spoke before
and adequate water supplies. The basic con-
Americans realized that poverty was an
ditions of life for the poor must, and can,
urgent public dilemma-from which the
be changed.
only escape was to change the basic condi-
We must deal with a wide range of physi-
tions of human life.
cal and human needs. On the human side.
Theodore Roosevelt and Franklin Roo-
alone, the strategy must respond to a variety
sevelt in their times, began the necessary
of problems.
process of change:
Some of the poor-the aged and the hope-
-The Children's Bureau, proposed in
lessly disabled-are unable to make their
1909 and established in 1912, spear-
own way in this world because of conditions
headed broad efforts to improve
beyond their control. For them, social secu-
maternal and infant care and to provide
rity, veterans pensions and public assistance
better services and protection for our
can assure a life at minimum levels of human
youth.
decency and dignity.
-The public housing program, begun in
Others in our society are working at very
1934, today affords more than 2 million
low wages or are unemployed. But they are
low-income Americans decent housing.
capable of helping themselves if given an
-The benefits of the Social Security Act
opportunity to do so. To launch them on the
of 1935 will provide $25.8 billion in old
road to a self-sufficient life, special education,
age, disability and survivorship benefits
training and employment opportunities will
in fiscal 1968, if my recommendations
be necessary.
are adopted by the Congress.
Our strategy requires programs that
-The federally-aided public assistance
respond to the human needs of each of these
programs, authorized in 1935, will
groups. And we have proposed such
provide $5 billion in Federal, State and
programs:
local aid to more than 7 million needy
-To give disadvantaged children healthy
individuals in fiscal 1968.
bodies and the chance to learn.
-The Fair Labor Standards Act, enacted
-To give the teenagers in our ghettos
in 1938, now provides minimum wage
and pockets of rural poverty the train-
and hour protection for some 40 million
ing and skills they need to get jobs.
workers.
-To give our young the chance to de-
velop their minds in college, through
A STRATEGY AGAINST POVERTY
Federal grants and loans.
-To give the old and the disabled, who
In the 1960's, we have begun to devise a
are incapable of helping themselves, in-
total strategy against poverty. We have
creases in Social Security and the per-
recognized that public housing, minimum
sonal security of being able to see a
wages and welfare services could not, stand-
doctor or obtain hospital care, without
ing alone, change the bleak environment of
losing their entire life savings.
deprivation for millions of poor families.
We also must have programs to improve
A successful strategy requires a break-
the surroundings in which the disadvantaged
through on many fronts: education, health,
live-the physical and social environment of
jobs and job training, housing, public as-
America which has too long entrapped the
sistance, transportation, recreation, clean air
poor. We have made proposals for:
332
Lyndon B. Johnson, 1967
Mar. I4 [114]
-Model Cities, to rebuild entire blighted
budget recommendations have been dis-
neighborhoods in cities, large and small.
cussed in previous messages to the Congress
-Rent Supplements, to bring the genius of
this year-on Education and Health, Chil-
private industry and private capital to
dren and Youth, Older Americans, Crime in
the problem of housing the poor
America and Equal Justice. The programs
decently.
described in this message are part of our
-Civil Rights legislation, to remove arbi-
strategy to change the depressing conditions
trary barriers of discrimination which
of poverty now facing millions of our fellow
prevent a man otherwise qualified from
men.
getting a job or a home because of his
race.
II. POVERTY-AND OPPORTUNITY
Our strategy against poverty relies on:
-The private initiative of every citizen
Few undertakings in our time have gener-
and on the self-help efforts of the poor
ated as much hope, produced as many im-
themselves.
mediate and beneficial results, or excited as
-The resources of city, county, state and
much controversy, as the anti-poverty pro-
metropolitan agencies.
gram I first submitted to the Congress on
-Federal programs to supplement private
March 16, 1964.
and local activities and often to supply
The controversy was inevitable: what is
the vital thrust of innovation.
being attempted is a fundamental change in
We have made substantial gains. But we
the way government responds to the needs of
have also come to see how profound are the
the poor.
problems that confront us, how deeply in-
That there would be some confusion and
grained are the customs and practices that
mistakes was inevitable. The need was for
must be changed, how stubbornly the herit-
action. America could not wait for a decade
age of poverty persists from generation to
of studies which might not even show pre-
generation.
cisely what should be attempted. New pro-
Many of our early efforts have revealed the
grams had to begin in our cities and rural
dimensions of the work that remains to be
communities, in small towns and in migrant
done. For some, this has inspired a pessimism
labor camps. America had to pull the drown-
that challenges both the value of what has
ing man out of the water and talk about it
been accomplished and the capacity of our
later.
Federal democracy to complete the task. For
This experience has led to progress and
others, it has inspired a sober determination
great accomplishment. We have learned
to carry through with programs that show
more than some of the most enthusiastic sup-
great promise, to improve their administra-
porters of the anti-poverty program had
tion and to seek still more effective instru-
hoped.
ments of change.
Greater opportunities for millions of
I have already submitted to the Congress
Americans depend on how we build on our
my budget recommendations for fiscal 1968.
experience:
I have recommended $25.6 billion for the
-On enlarged resources for the Office of
programs directly aiding the poor-a $3.6 bil-
Economic Opportunity to strengthen
lion increase over fiscal 1967.
and expand programs that have shown
Many of the programs underlying these
great promise and to continue the de-
333
[114] Mar. 14
Public Papers of the Presidents
velopment of new and better techniques.
-The responsibility of the Boards for pol-
-On tightened administration of those
icy formulation and control of commu-
programs so that the poor receive the
nity action programs should be made
maximum benefits, at the lowest cost to
explicit.
the American taxpayer.
3. To strengthen the role of the States,
especially in rural areas.
THE ECONOMIC OPPORTUNITY ACT OF 1967
-States should be encouraged to assist in
establishing regional community action
I recommend that the Economic Oppor-
agencies in rural areas.
tunity Act be amended:
-The joint funding of anti-poverty pro-
I. To help local community action agen-
grams by Federal and State agencies
cies define their purpose more precisely and
should be encouraged.
improve their planning, auditing and per-
-Federal funds should be provided so that
sonnel systems.
States may give increased planning
-The purpose and functions of commu-
assistance to rural communities.
nity action agencies should be made
4. To encourage more participation by pri-
more explicit: in their relationship to
vate enterprise.
state, county and municipal authorities,
-The obligation of community action
in planning, coordinating and providing
agencies to design and conduct programs
services, and in community involvement
with full participation by the private
and innovation.
sector should be made explicit.
-Strict rules should be established to gov-
-A closer relationship should be devel-
ern the pay, selection and accountability
oped between employers, unions and the
of community action personnel. Person-
new work-training programs, with more
nel systems should embody merit fea-
individual attention to trainees in on-the-
tures and set the highest standards of
job training programs.
conduct and efficiency.
5. To use the Economic Opportunity Act
-The provisions in existing law prohibit-
to encourage welfare recipients to become
ing partisan political activities should be
self-sufficient.
retained and strengthened wherever
-Job Corpsmen, Neighborhood Youth
possible.
Corpsmen and others engaged in work
-Auditing requirements now in the law
and training under this Act should be
should be expanded and improved.
given greater incentives to work, by
2. To give public officials and other inter-
allowing them to earn more without a
ested groups in the community voice in form-
corresponding loss of welfare assistance
ing policy for community action agencies.
to their families.
-There should be a requirement for repre-
6. To give new direction and momentum
sentation of local public agencies on
to the programs in rural areas.
community action boards, as well as
-A new position of Assistant Director for
representation for the neighborhood
rural affairs should be established to co-
groups to be served.
ordinate and strengthen programs af-
-Standards should be set specifically de-
fecting the rural poor.
fining the powers and duties of Com-
7. To strengthen the Economic Op-
munity Action Boards.
portunity Council in the coordination of
334
Lyndon B. Johnson, 1967
Mar. I4 [114]
anti-poverty activities of Federal agencies.
and totally disengaged from any partisan
-The Council's role in helping to im-
political activity. This Administration, the
prove coordination among federal pro-
National Advisory Council on Economic
grams related to the anti-poverty effort
Opportunity and, I am confident, the Con-
should be more clearly spelled out.
gress, will be constantly alert to the danger
These changes will make the administra-
of partisan political activity and will take
tion of the program more effective. But im-
the necessary steps to see that it does not
proved administration is not enough. More
occur.
people must be reached. The gap between
promise and real opportunity is still broad.
Legal Services
Additional funds must be provided if we
To be poor is to be without an advocate-
are to make genuine progress in attending
in dealing with a landlord, a creditor, or a
to our unfinished business.
government bureaucrat. It is to be subjected
I recommend that the Congress appropri-
to the hostility or indifference of society,
ate $2.06 billion for the Office of Economic
without redress. It is to be exposed to frustra-
Opportunity for fiscal 1968-a 25 percent
tion and delay, without relief.
increase over fiscal 1967.
The Legal Services Program offers free
legal assistance in civil matters to people
who otherwise could not afford an attorney.
COMMUNITY ACTION
The program provides-in ghettos, on
The purpose of community action is to
Indian reservations, in migrant camps and in
encourage those who need help to help
rural counties-lawyers for the poor in evic-
themselves.
tion and consumer credit cases, in admin-
A Community Action Agency should pro-
istrative actions and in hundreds of other
vide a voice in planning programs to
encounters involving their legal rights.
mayors, local business and labor leaders, the
The program has the wholehearted en-
citizens to be helped, teachers, lawyers,
dorsement of the American Bar Association,
physicians-all those who give their time
the National Bar Association and the Na-
and efforts to relieve poverty in their com-
tional Trial Lawyers Association. With the
munities and who know well the needs of
help of these Associations, legal services are
their neighbors. It may be established as a
now being provided in 44 of the Nation's
private, non-profit corporation or created by
50 largest cities and in some rural areas.
local government. Each agency analyzes the
I have asked the Director of the Office
problems its community faces and develops
of Economic Opportunity to strengthen these
a strategy for its anti-poverty, self-help ef-
efforts and to expand the services available
fort. This strategy may include any com-
to smaller towns and rural areas.
bination of Federal, State and local pro-
grams which will assist the poor in their
NEIGHBORHOOD CENTERS
fight against poverty.
Community action agencies should devote
Multi-Service Centers
their energies to self-help measures and new
To be poor in a city is to spend long hours
initiatives that will advance their communi-
and precious dollars for carfare in search
ties in the war against poverty. To be effec-
of assistance. The employment service may
tive, it is essential that they be non-partisan
be in one part of town, the social security
335
[II4] Mar. I4
Public Papers of the Presidents
office in another, welfare offices, veterans as-
no pre-natal care at all.
sistance, adult literacy training, medical care
-More than 60 percent of poor children
or housing aid in others.
with disabling handicaps are not re-
To be poor in a rural area is to travel many
ceiving any medical care.
miles in hope of finding assistance-often
-60 percent of all poor children never see
fruitlessly. The services needed are too often
a dentist.
in another county or only in a big city.
-The chance of a child dying before the
The fragmentation-and the unavail-
age of one is 50 percent higher for the
ability-of services imposes great hardship
poor.
upon the poor. Often it denies them. the
-The chance of dying before reaching the
comprehensive help that can provide secu-
age of 35 is four times greater for the
rity, and the chance to stand on their own
poor.
two feet before their fellow men.
The poor man, making two thousand
We are trying a variety of methods for
dollars a year or less-in many cases because
providing these services more effectively.
of previous illness-will lose twice as many
Hundreds of neighborhood centers have
working days from illness as the man who
been created: some are referral agencies,
makes seven thousand dollars or more.
others house a complex of services drawn
In Health Centers, located where the poor
from existing programs. In rural areas cen-
live, medical care can be effectively provided
ters have been established to serve multi-
for those who need it most. Where appro-
county areas. Our goal is to develop within
priate, the Health Centers are linked to
each community the most effective means to
Neighborhood Multi-Service Centers so that
deliver the services so desperately needed at
the individual citizen can obtain in one place
the lowest cost to the taxpayer.
a wide range of needed services.
I have asked the Director of the Office of
The Director of the Office of Economic
Economic Opportunity, in cooperation with
Opportunity, in cooperation with the Secre-
the Secretary of Housing and Urban De-
tary of Health, Education, and Welfare, will
velopment and other federal departments, to
encourage local communities to establish
expand and strengthen the development of
additional Health Centers in the coming
Neighborhood Multi-Service and Multi-
fiscal year, so that up to 50 will be in opera-
County Centers in the coming fiscal year.
tion by the end of fiscal 1968.
These Centers have become the focal point
of many local efforts in their attack on
UPWARD BOUND
poverty, and I expect that local communities
will seek some $120 million for them in fiscal
When a child's potential for success in life
1968.
is lost, the nation as well as the child is the
loser. When a bright mind is dimmed by
Health Centers
successive failures in school, and the despair
To be poor is to be without adequate medi-
failure brings, the community suffers as
cal care:
much as the student himself.
-One-half of all women who have their
Upward Bound seeks out poor rural and
babies in public hospitals have received
urban youngsters whose talents are unde-
336
Lyndon B. Johnson, 1967
Mar. I4 [II4]
veloped. They are given intensive individual
HEAD START AND HEAD START FOLLOW-THROUGH
attention and the best training our education
system can offer so that they can develop their
I have already submitted to the Congress
talents to the full reach of their individual
my recommendations to improve educa-
capacity.
tional opportunities for children who need
Two hundred and twenty-four public and
them most of all-the children of the poor.
private universities and private secondary
For thousands of children in ghettos and
schools are taking part in Upward Bound
pockets of rural poverty, in migrant labor
this year. More than 20,000 poor young men
camps and on Indian reservations, the Head
and women are today headed for high school
Start Program has "replaced the conviction
graduation and college study through Up-
of failure with the hope of success." This
ward Bound. We estimate that 78 percent of
fiscal year, Head Start will provide summer
these youngsters-as compared to 8 percent
opportunities for about 500,000 children and
of poor youth generally-will go on to
a full-year program for nearly 200,000
college.
children.
Applications for Upward Bound far exceed
We must not lose the precious momentum
the funds presently available. Those funds
children gain from Head Start by returning
must be increased-for America needs the
them to substandard schools. We must pro-
trained and competent citizens these poor
vide the Follow-Through necessary to vitalize
children can become.
the first years of their grade school experi-
My budget includes sufficient funds for
ence. We must involve more parents and
Upward Bound to benefit more than 30,000
increase the services of teachers, teachers
young men and women in fiscal 1968.
aides, doctors and counselors for disadvan-
taged children in the early grades.
FOSTER GRANDPARENTS
For this reason, I have recommended the
Head Start Follow-Through Program. My
Children in orphanages and homes for the
budget recommendations to the Congress in-
retarded need the patient care of older men
clude $472 million for Head Start, including
and women. Older Americans need the sense
funds for the new Head Start Follow-
of usefulness that a child's dependence can
Through Program to sustain the progress
bring.
Head Start has made.
The Foster Grandparents program meets
With these funds, we will strengthen the
these needs for more than 2,000 older Amer-
year-round Head Start Program and begin to
icans and 5,000 children. These Foster
plan and operate Head Start Follow-
Grandparents are given training and rela-
Through programs for up to 200,000 chil-
tively substantial increases in their incomes
dren coming into the first grades.
for visiting, teaching and caring for children
who need them.
NEIGHBORHOOD YOUTH CORPS
The Director of the Office of Economic
Opportunity, in cooperation with the Secre-
At a critical period in their lives, the
tary of Health, Education, and Welfare, will
Neighborhood Youth Corps has given some
expand this program next year.
800,000 young men and women from both
337
[114] Mar. 14
Public Papers of the Presidents
rural and urban America a chance to suc-
of them had been previously rejected
ceed as adults. It has helped them work their
because they failed to meet medical or
way through school, return to school, or
educational standards.
prepare for useful employment.
The Job Corps does not benefit only those
My budget recommendations provide $321
it serves. It has developed educational mate-
million for the Neighborhood Youth Corps
rials now being used by 84 schools across
in fiscal 1968 to:
America. Its volunteers have worked on con-
-Give 195,000 young people the chance
servation and beautification projects, and
to stay in school.
public facility improvements. The Job Corps
-Help 90,000 young people return to
youths, who are themselves poor, send more
school or prepare for jobs.
than $1 million home to their families each
-Provide summer jobs for 190,000 young
month.
people.
While the Job Corps has used the best
talents of industry and of universities to de-
JOB CORPS
sign the program and operate the centers,
If the attack on poverty is to mean any-
many problems remain. Costs must be re-
thing, it must reach all the poor-including
duced and discipline improved. In fiscal 1968,
those whose educational experience and past
the estimated full-year cost for a Job Corps-
behavior make them difficult to teach, moti-
man in established centers will be about
vate and discipline.
$6,700-down from an average cost of about
The Job Corps is a response to that moral
$8,400 during the last half of fiscal 1966. This
imperative. Its success must be measured
sum will cover food, clothing, transportation,
against the difficulties of its task.
medical and dental care, pay and allowances,
There are II3 Job Corps centers in Amer-
as well as the cost of training and education.
ica. More than 60,000 youths have passed
The experience we have gained thus far
through them in the last two years.
will permit tighter cost controls, firmer
For some, the Job Corps experience was
discipline, and more effective recruitment
too short to matter significantly. For others,
and placement. The Job Corps in fiscal 1968
there was only time enough to have a physi-
will be even more effective in reaching those
cal examination, or to learn to read a little or
young people for whom the road to produc-
to add a column of figures. But even this was
tive and responsible lives is the longest and
a gain for the young who, on the average,
hardest.
enter the Job Corps at a fourth grade reading
My budget recommendations include $295
level and have never seen a doctor or dentist.
million for the Job Corps Program in fiscal
For most, the Job Corps has meant a
1968-to educate, train and renew the hopes
chance to be a productive-and taxpaying-
of some 50,000 young men and women.
citizen:
--26,000 hold jobs earning an average of
VISTA
$1.71 per hour.
-4,500 are back in school to complete an
By this June, more than 4,000 Volunteers
education they have been motivated to
in Service to America-VISTA volunteers-
seek.
will be in the field. They will be living and
-3,500 are in the armed services. Many
working in the hollows of Appalachia, on
338
Lyndon B. Johnson, 1967
Mar. 14 [114]
Indian reservations, in migrant camps and
$32 million in loans under this program in
city slums-to teach skills, care for the sick,
fiscal 1968.
and help people to help themselves.
My budget recommendations for fiscal 1968
A CONCENTRATED EMPLOYMENT PROGRAM
include $31 million for the VISTA Program.
No matter how dedicated or skillful, 4,000
A thriving national economy is critical to
volunteers cannot accomplish the thousands
our anti-poverty effort. Through private ini-
of tasks that require attention in America's
tiative and wise economic policy, our
poor neighborhoods. Neither can a massive
economy is meeting its fundamental test of
flow of dollars and new programs. We will
producing revenue and employment.
continue to search for ways to enlist still
It has not always been so. In the period
more Americans in part- and full-time serv-
from 1957 to 1959, I.9 million Americans,
ice to their fellowman.
new to the job market, sought work. One
million of them could not find jobs. Despite
OPERATION GREEN THUMB
prosperity, unemployment increased.
In the last three years, four million Amer-
Hundreds of older unemployed and retired
icans joined the work force for the first time.
farmers and rural workers have gained in
5.25 million jobs were added to the economy.
income and in dignity, while contributing to
Unemployment was reduced by 1.25 million.
the safety and beautification of State high-
But economic policy and unprecedented
ways, schools, parks and rural towns through
prosperity have not reached thousands of
projects like Operation Green Thumb. They
men and women who live in the nation's
have assisted their disadvantaged neighbors
slums. The Secretary of Labor has in-
to improve their homes and have added their
vestigated the unemployment situation in
skills to enhance neighboring communities.
slums and found that:
I have asked the Director of the Office of
-Unemployment rates in the slums are
Economic Opportunity in cooperation with
three times the national average.
8
the Secretaries of Labor and Agriculture, to
-Large numbers of people work a few
expand this activity and to develop new ways
hours of the week, unable to find the
to provide meaningful public service oppor-
full-time work they seek.
d
tunities for the elderly in rural areas.
-Large numbers work full-time at
poverty wage levels.
-Nearly one-third of those who should
5
RURAL LOAN PROGRAM
be employed at self-supporting wages
The special rural loan program of the
are not.
Office of Economic Opportunity will assist
Neither a high performance economy nor.
13,000 families this year to improve their
traditional training and employment serv-
farms and carry on small businesses. Hun-
ices have been able to reach these men and
dreds of other poor families will be helped
women. Some need special counseling and
rs
to increase their production and marketing
training. Others need special health and
capacity by loans made to rural cooperative
educational assistance. All need follow-up
associations.
assistance until they are permanently placed
My budget recommendations provide for
in a stable job. Even after that, they may
339
[114] Mar. I4
Public Papers of the Presidents
need special attention during their first
portunity, to make a comprehensive study
weeks of employment.
of the problems of wage garnishment and
I have directed the Secretary of Labor and
to recommend the steps that should be taken
the Director of the Office of Economic Op-
to protect the hard-earned wages and the
portunity, with the assistance of other
jobs of those who need the income most.
Federal agencies, to begin immediately a
special program using all available resources
PERSEVERANCE
to provide concentrated assistance to those
with the greatest need.
Poverty cannot be eliminated overnight.
This program will
It takes time, hard work, money and per-
-Enlist the active support and coopera-
severance.
tion of business and labor organizations
It has been only two years and three
at the local level.
months since we decided to embark upon a
-Provide a wide range of counseling,
concentrated attack on poverty. We have
health, education and training services
made progress. But victory over poverty will
on an individual basis.
not quickly or cheaply be won.
-Provide the follow-up assistance neces-
We do not have all the answers. But we
sary to insure that a job once obtained
have given a great many people-very young
will not quickly be lost.
children, restless teenagers, men without
-Use local community action agencies as
skills, mothers without proper health care
the focal point wherever practicable.
for themselves or their babies, old men and
I recommend that the Congress appropri-
women without a purpose to fill their later
ate $135 million under the Economic Op-
years-the opportunity they needed, when
portunity Act to support this program to
they needed it, in a way that called on them
train and put to work up to 100,000 slum
to give the best of themselves.
residents next year. These funds, together
Millions more Americans need-and
with existing programs, will enable us to
deserve-that opportunity. The aim of this
provide the special counseling and personal
Administration is, and will be, that they shall
attention necessary to reach these im-
have it.
poverished Americans.
I urge the Congress to examine these pro-
This will be a tough objective to meet. But
grams carefully, to evaluate their accom-
we pledge to make every effort to achieve it.
plishments, and then to support them fully
with the funds necessary to do the job.
WAGE GARNISHMENT
III. IMPROVING THE CONDITIONS OF
Hundreds of workers among the poor lose
URBAN LIFE
their jobs or most of their wages each year
as a result of garnishment proceedings. In
The needs for jobs and job training, for
many cases, wages are garnished by un-
special education and health care, for legal
scrupulous merchants and lenders whose
assistance, are all urgent in the life of the
practices trap the unwitting workers.
poor. Most often they exist together in the
I am directing the Attorney General, in
urban slum-isolated from the city of which
consultation with the Secretary of Labor and
they are a part.
the Director of the Office of Economic Op-
I shall not elaborate on these conditions.
34°
Lyndon B. Johnson, 1967
Mar. I4 [II4]
They are familiar to everyone who has
RENT SUPPLEMENTS
looked candidly at the American city. So
are some of the things that should be done
The 89th Congress authorized the Rent
about them.
Supplement Program to enable poor families
In the past few years, we have made a
to live in decent, privately-owned housing.
heavy investment in improving the condi-
Only families whose incomes are so low
tions of life in the cities. Federal aid to cities
that they are eligible for publicly-owned
and their citizens has been steadily rising-
housing can receive rent supplements-and
from grants and direct loans of $3.9 billion
then only if they are displaced from their
in 1961 to $10.3 billion in 1968.
homes by governmental action or a disaster,
But some of the most promising urban
are elderly or physically handicapped, or
programs are today only authorizations on
occupy substandard housing.
the statute books. The 89th Congress made
With low-rent housing in short supply,
them law. It remains for the 90th Congress
it is more important than ever to stimulate
to give them life.
construction by private enterprise and non-
profit organizations. The Rent Supplement
MODEL CITIES
Program authorizes payments that make the
construction of low-rent units attractive for
The Model Cities program, enacted last
builders.
year, is an attempt to focus a variety of aids-
Last year the Congress provided funds to
physical and social-on the problems of the
get this program underway. This year it
slums and to enlist private and local support
must be expanded.
to rebuild the blighted areas of America's
I urge the authorization of an additional
cities.
$40 million for the rent supplement program
It is a comprehensive approach to human
in fiscal 1968.
problems-involving jobs, education, health
facilities, housing.
HOME OWNERSHIP
Fulfilling the purpose Congress pro-
claimed last year is a necessity. We have in-
For many American families, home own-
spired the hopes of large and small cities in
ership is a source of pride and satisfaction,
every State. We have generated in local com-
of commitment to community life.
munities a commitment to excellence as they
Some families with low but steady incomes
plan for the future.
have become the owners of decent, modest
I strongly urge the Congress to appropriate
homes. Their well-maintained homes are
the full amount it has authorized for Model
often in the midst of slum areas. They are
Cities in fiscal 1968:
frequently surrounded by substandard homes
-$12 million for additional planning
owned by absentee landlords, where poor
grants.
families pay rent in amounts much higher
-$400 million for supplemental grants to
than would have been required for owner-
be used in carrying out local model city
ship of a modest home.
programs.
We must learn how best to help low-
-$250 million for urban renewal projects
income families own their own homes.
in the Model cities.
I have directed the Secretary of Housing
341
[114] Mar. I4
Public Papers of the Presidents
and Urban Development to carry out, within
1967, to launch a major program of rat con-
existing authority, a low-income housing-
trol and eradication. I will ask the Congress
ownership pilot program, so that these les-
to provide $20 million to initiate this effort
sons may be learned and converted to public
in fiscal 1968.
policy on a broad scale.
Under this Act, as part of the broader pro-
I am authorizing the Federal National
gram of community development, the Secre-
Mortgage Association to use $20 million of
tary of Housing and Urban Development, in
its funds to support this program.
cooperation with the Secretary of Health,
The Program will:
Education, and Welfare and the Director of
-Identify low-income families with the
the Office of Economic Opportunity, will
potential to build an ownership equity
help cities:
in a home.
-Establish house-by-house, block-by-block
-Provide guidelines to assure the eco-
extermination programs in rat infested
nomic soundness of their investment.
neighborhoods.
-Explore a program to insure low-income
-Provide special concentrated code en-
families against mortgage defaults and
forcement assistance to eliminate rats
foreclosures that result from loss of
from city slums.
health or economic recession.
-Provide public education campaigns for
-Encourage ownership equity to be ac-
residents of slum areas.
quired through self-help in the con-
-Help provide better garbage collection,
struction of homes.
eliminate harborages, and take on the
New and rehabilitated housing, single-
necessary self-help measures to protect
family homes and apartment structures
against rats.
should be included in the program. All forms
-Build on the experiences in Chicago and
of ownership should be explored-single-
Detroit, where slum residents were
family homes, cooperative and individual
trained, mobilized and given the tools
apartments.
to conduct a major attack on rats in their
infested tenements.
PROTECTING THE SLUM CHILD
URBAN HOUSING REHABILITATION
The knowledge that many children in the
world's most affluent nation are attacked,
Franklin D. Roosevelt said long ago what
maimed and even killed by rats should fill
is still true today: "American industry has
every American with shame. Yet, this is an
searched the outside world to find new mar-
everyday occurrence in the slums of our cities.
kets but it can create on its very doorstep the
There is no excuse for this national dis-
biggest and most permanent market it has
grace. The rats' food supply can be elimi-
ever had."
nated. Garbage can be collected. Harborages
Rehabilitation is the key to many of our
can be eliminated. Buildings can be made
successful urban renewal programs. It is
rat-proof. As this can be done, it must be
crucial to the success of the Model Cities
done.
Program.
To help America's cities wipe out this
I intend to call together an outstanding
threat to their people's health and safety,
group of private citizens from across the
I recommend the Rat Extermination Act of
country-from business and labor, govern-
342
Lyndon B. Johnson, 1967
Mar. 14 [r14]
ment and the building industry-to examine
To improve public transportation systems
every possible means of establishing the insti-
and to reduce traffic congestion, I recom-
tutions to encourage the development of a
mend legislation to authorize the Secretary
large-scale efficient rehabilitation industry.
of Transportation, under the Federal high-
I will ask this group of outstanding Amer-
way program, to participate in the cost of ac-
icans to find the best ways to tap the enor-
quiring land and developing public parking
mous market that exists in rebuilding our
facilities on the outskirts of large cities. This
cities and to bring the most modern systems
authority would enable the Secretary to
and the most advanced technology to this
promote the multi-purpose use of space over
urgent task.
and under expressways and to develop areas
alongside of highways for parking terminals.
GRANTS FOR METROPOLITAN DEVELOPMENT
RESEARCH AND DEVELOPMENT
Unless metropolitan development is or-
derly, the public's money will be wasted on
Less than one-tenth of one percent of our
public facilities-schools, hospitals, police
total research and development expenditures
and fire stations-that are obsolete before
in government have been devoted to the field
they are even completed.
of housing and urban affairs. Yet, 7° percent
Last year the Congress authorized a new
of our citizens live in urban areas.
program of twenty percent grants to support
This failure to apply scientific resources
orderly development by local communities,
and methods to an area of such vital impor-
working cooperatively in metropolitan areas.
tance to American life cannot be permitted to
These Federal incentive grants supplement
continue.
ten other Federal grant-in-aid programs that
Today, we can give only partial, insuffi-
help finance transportation facilities, water
cient answers to such basic questions as how
and sewer facilities, recreational and other
to build better housing at lower cost, how
open space areas, libraries and hospitals.
to move people more rapidly at less cost in
I urge the Congress to provide $30 million
congested urban areas.
in Fiscal 1968 for this essential program.
This year, I ask that we move to build a
basic foundation of urban knowledge-in
three ways:
URBAN TRANSPORTATION
First, I recommend legislation to author-
The life of a city depends on an adequate
ize a new Assistant Secretary in the Depart-
transportation system.
ment of Housing and Urban Development
Inefficient transportation increases the costs
for research, technology and engineering.
of local industry, and the prices paid by con-
Under the new Assistant Secretary, an
sumers in local stores. It robs the commu-
office for urban research, technology and en-
nity's citizens of their leisure time and com-
gineering will be established along lines that
fort. It penalizes the physically handicapped
have proven successful in other agencies of
and those too poor to own a car.
government. The new office will also serve
I recommend that the Congress provide
as a source of information for State and local
$230 million in advance funds for fiscal 1969
governments and for private industry.
for the construction and improvement of
Second, I am asking the Secretary of Hous-
urban mass transportation systems.
ing and Urban Development to encourage
343
rmal poverty
[I14] Mar. I4
Public Papers of the Presidents
the establishment of an Institute of Urban
areas receive an equitable share of their
Development, as a separate and distinct orga-
benefits.
nization. Such an organization would look
-The Secretary of Agriculture has been
beyond immediate problems and immediate
given responsibility to identify develop-
concerns to future urban requirements, and
ment problems in rural areas which re-
engage in basic inquiries as to how they may
quire the cooperation of various Federal
be solved.
departments, so that these programs may
Third, I recommend:
be better coordinated and duplication
-$20 million in fiscal 1968 in funds ap-
eliminated.
propriated to the Department of Hous-
But much more needs to be done.
ing and Urban Development for general
research.
PLANNING AIDS FOR MULTI-COUNTY AREAS
-An increase from $13 to $18 million for
other studies and experimentation in the
This is no longer a nation of small towns
fields of housing, urban development
and communities which can develop in-
and urban transportation.
dependently. Improved transportation and
modern communications have created a
IV. PROGRAMS FOR THE RURAL POOR
larger concept of community. Its bounda-
ries are not marked by any arbitrary politi-
Men have argued the merits of providing
cal lines, but by the commuting distance to
jobs in rural areas to stem the flow of people
available jobs.
into the cities, as against providing jobs and
Many states have recognized this, and have
training on arrival or training for jobs prior
established multi-county planning and de-
to departure. Whatever the "correct" answer
velopment areas. Others are doing so. In
may be to this argument, it seems clear to me
many cases, rural community action agen-
that conditions of impoverishment in rural
cies-organized on a multi-county basis-
America continue to exist and must be re-
serve the same purpose.
lieved to the extent we know how to relieve
But many rural communities lack the
them.
means to form multi-county development
We have taken a number of actions that
districts. Many lack the personnel trained in
will, in time, produce effective results:
planning broad social and economic pro-
-A National Advisory Commission on
grams. Others lack the resources to enable
Rural Poverty has been established and
them to plan effectively.
will submit its report and recommenda-
I recommend that the Congress amend
tions to me at the end of the year.¹
the Housing Act of 1954 and authorize $20
-I have asked the Secretary of Agricul-
million to provide:
ture and the Director of the Bureau
-Grants to States by the Department of
of the Budget to review all existing
Housing and Urban Development of up
Federal programs to insure that rural
to two-thirds of the cost of technical as-
sistance to and comprehensive planning
1 A letter to the President from the Secretary of
by official multi-county planning agen-
Agriculture transmitting the Commission's report
cies in non-metropolitan areas, includ-
was made public by the White House Press Office on
December 9, 1967 (3 Weekly Comp. Pres. Docs., p.
ing multi-county community action
1686).
agencies.
344
Lyndon B. Johnson, 1967
Mar. I4 [II4]
-Technical assistance to the multi-county
tory farm workers are barred in many States
planning agencies by the Department of
from receiving public assistance, vocational
Agriculture.
rehabilitation, and other welfare services.
Disabled workers and their families are often
INCREASING OUR PUBLIC INVESTMENT
not served-even when otherwise eligible-
because of their relatively brief period with-
For many rural areas, a relatively small
in a State.
public investment will return substantial in-
I. recommend a five point program for
creases in opportunity for the local people.
these forgotten Americans:
I. recommend legislation to remove the
I. Legislation to provide 90 percent
annual ceiling on insured loan authority for
Federal reimbursement for vocational re-
rural community water and waste disposal
habilitation services for disabled migratory
systems.
farm workers. The Secretary of Labor will
Eliminating the existing $450 million
develop a system for identifying migratory
limitation on lending authority for this pro-
farm workers who would be considered for
gram will permit more rapid completion of
benefits under this program.
the water and waste disposal systems rural
2. Amendments of the public assistance
America needs for economic development.
law to authorize pilot projects to provide
I also recommend legislation to expand the
temporary public assistance and other wel-
provisions of the existing loan programs
fare services for migratory farm workers and
to permit farm owners or their tenants to
their families, who are now barred by resi-
shift the entire use of farm land with ade-
dence requirements from receiving these
quate recreation potential from agricultural
services.
production to income-producing recreation
3. A 25 percent increase-from $28 to $35
enterprises, as part of comprehensive land-
million-in funds to provide:
use plans for rural and neighboring urban
-Special educational services for more
areas.
than 170,000 migrant children.
This program would permit better use of
-Health services for about 280,000 migra-
scarce land resources, provide better op-
tory workers and their families.
portunities for some farmers now using poor
-An expanded self-help housing program
farm land for crop purposes and furnish
for the construction of 2,000 housing
urgently needed recreation facilities for our
units.
population.
4. Amendment of the Unemployment In-
surance laws to provide benefits for workers
MIGRANT FARM WORKERS
employed on large commercial farms.
5. Extension of social security benefits to
Migrant farm workers are among the for-
500,000 farm workers by reducing. from
gotten Americans. Their wages are low, their
$150 to $50 the amount which must be
employment uncertain, and their housing
earned from a single employer each year.
and working conditions deplorable. Though
their needs are great, they often find it im-
V. FINISHING THE NATION'S BUSINESS
possible to obtain social services available to
other poverty-stricken Americans.
It is difficult for most Americans to un-
Because of residency requirements, migra-
derstand what it is to be desperately poor in
345
[114] Mar. I4
Public Papers of the Presidents
today's affluent America. More than half our
does not want to be free. He must use the
population was born after 1940. Less than
ladders that circumstance, native ability, and
half can remember the depression on the
his Nation may create.
farms of the twenties, or the bread-lines of
Let it be said that in our time, we pursued
the thirties. "The Grapes of Wrath" is an-
a strategy against poverty so that each man
cient literature-not a living record-to
had a chance to be himself.
most Americans.
Let it be said that in our time, we offered
Yet for more than 31 million Americans,
him the means to become a free man-for
poverty is neither remote in time, nor re-
his sake, and for our own.
moved in space. It is cruel and present reality.
LYNDON B. JOHNSON
It makes choices for them. It determines
The White House
their future prospects-despite our hope and
March 14, 1967
belief that in America, opportunity has no
bounds for any man.
NOTE: For statements or remarks upon signing re-
lated legislation, see Items 285, 359, 413, 427, 517,
Poverty was universally tolerated until a
520, 568.
century or so ago. But like disease, war and
Other related legislation was approved by the
President as follows: Mental Health Amendments
famine, it gained nothing in acceptability
of 1967, appropriating funds for community mental
because it was prevalent. As soon as men
health centers, approved June 24, 1967 (Public Law
saw that they might escape it, they fought
90-31, 81 Stat. 79); Appalachian Regional Develop-
ment Act Amendments of 1967, granting Federal
and died to escape it.
loans to rural communities, approved October II,
Poverty denies to most of those born into
1967 (Public Law 90-103, 81 Stat. 257); Inde-
it a fair chance to be themselves, to be happy
pendent Offices and Department of Housing and
Urban Development Appropriation Act, 1968, pro-
in life. Federal funds or services, and the op-
viding funds for model cities programs, urban assist-
portunities they provide, cannot permanently
ance, and community development programs, ap-
free a man from the trap of poverty if-he
proved November 3, 1967 (Public Law 90-121, 81
Stat. 341).
II5 Remarks at the Hermitage at Ceremonies Marking the 200th
Anniversary of the Birth of Andrew Jackson. March I5, 1967
Governor and Mrs. Ellington, Mrs. Gore,
led armies, served as State judge and terri-
Secretary Gardner, Congressman and Mrs.
torial governor, and was elected to both the
Fulton, Mrs. Buntin, distinguished Mayor,
House of Representatives and the United
Reverend Horn, ladies and gentlemen:
States Senate by his grateful Tennessee
Two hundred years ago, Andrew Jackson
neighbors.
was born in the obscure poverty of the
But his greatest contribution to the life of
Carolina frontier.
the young Republic was the political trans-
Seventy-eight years later this man-who
formation of our democracy-through what
had only hearsay knowledge of his birth-
we now call the "Jacksonian Revolution."
place-died here at his beloved Hermitage,
It affected every aspect of the national
having left an indelible mark on American
life-the nature of the Union, the function of
society and its political institutions.
the President, the character of American
In the course of his long and stormy life,
politics.
Andrew Jackson taught school, practiced law,
To Jackson, the Federal Union was far
346