Mr. CRUIKSHANK. In title II of the act, Administration on Aging, section 204, the FCA recommends that the language to establish and operate a national information and resource clearing house for the aging be broadened to improve the effectiveness of the clearinghouse. The present language stresses "obtaining information concerning older persons from public and private agencies serving the needs and interest of older persons." The Council recommends rather than focusing on "needs and interest" that data collection, characteristics of the elderly, research findings and descriptions of current programs serving the elderly be included in the language. The FCA further recommends that analysis, dissemination, and publication also be included. These changes would increase the information available to the field of aging.

TITLE III-GRANTS FOR STATE AND COMMUNITY PROGRAMS ON AGING

Under title III of the act, section 302, the FCA recommends several changes in the social service definitions. Since the concept of services to avoid institutionalization has become more acceptable in the past several years, the FCA suggests that the definition be changed to service which would ensure that the elderly receive appropriate high-quality medical and social care in the community and institutions. The recommended change follows the Council's proposal for services for the frail elderly which focuses on a basic core of services to enable frail older persons to remain as independent as possible in their homes.

With emphasis on the importance of working to maintain the well-being of many elderly individuals, the FCA recommends that services related to job development, job referral and follow-up be included among the social service definitions. Many older persons who want to work need some assistance in obtaining employment.

The Council was required to undertake a study of the effects of the formulae for allotment among the States of funds appropriated for the area planning and social service programs authorized under title III of the Older Americans Act. As a result of the study, the Council recommends that the State allotment formulae be amended by adding poverty as a weighted index in addition to the number of State residents aged 60 or over which is the basis for the present State allotment formulae.

TITLE IV-RESEARCH AND TRAINING

The Council recommends that in part A of title IV, section 402 (a) be amended to require that the Commissioner in appraising personnel needs in the field of aging consult with minority aging organizations in addition to the organizations he is now required to consult with and include in reports on existing and future personnel needs the status of meeting the manpower needs for services to minority elderly.

We also recommend that part A of title IV, section 403(2)—On Attracting Qualified Persons to the Field of Aging be amended to include the additional purpose of: encouraging minority persons to enter the field of aging. This will demonstrate to this country's

minority elderly that there is recognition in the act of their special needs and an intent will be made to provide appropriate service. The Older Americans Act presently contains good affirmative action provisions. The additions recommended will further improve those provisions.

Under part B of title IV, section 411-Research and Development Projects, the Council recommends the description of activities be rewritten to describe what AoA should be doing in research. This section was enacted prior to the creation of the National Institute on Aging. Care should be taken in describing the research activities. of AoA to insure they are necessary and complementary to the activities of the NIA. In addition, of the six activities listed, only one—the first, is in the area of basic or applied research and this part authorizes the Commissioner to study current patterns and conditions of living of older persons and identifying factors which are beneficial or detrimental to the wholesome and meaningful living of such persons. Taken literally this restricts AoA research to the study of current patterns while we believe much of AoA research should be futuristic in nature. The Council would be pleased to assist in writing a recommended new description of activities for research.

Finally, two technical changes in title IV are recommended. The first is deletion of Section 412-Special Study and Demonstration Projects on the Transportation Problems of Older Americanssince the study required has been completed and sent to Congress. The demonstrations authorized in this section are also authorized in section 309.

Senator EAGLETON. Could we break in there? Senator Kennedy has a couple of questions.

Senator KENNEDY. The targeting of the employment program, the group it is targeting now being below the poverty line, can you give us any of your reaction, whether that ought to be maintained the way it is in the legislation to require that only the elderly below the poverty line be eligible? Does this cause any kinds of problems or stress between elderly groups?

Really, the second question I had was just in general kind of numbers, given the success of the program, from 37 to 47, what is your own estimate in talking to the people in different parts of the country where you think you might be able to go?

Those would be two areas in which I would be interested in your comments.

Mr. CRUIKSHANK. I did not catch your last question.

Senator KENNEDY. What do you think of the potential of the program? We always try to measure what we are doing, versus what can be effectively done. We are increasing from 37,000 to 47,000 the number of elderly people to be in it. From your own sense of talking with various groups, what do you feel would be a figure where. if you had the money you could use it effectively, how many elderly people do you think could actually be employed?

Those are two areas.

Mr. CRUIKSHANK. With limited resources, of course, Senator, you do want to be sure that the funds are channeled to those where there

is the greatest presumptive need. This I think justifies the requirement that the recipients of these opportunities be below the poverty level, assuming that the poverty level is at least realistic. I do not think it always is. Sometimes the poverty definition itself is almost destitution level.

However, I do know that in the operation of the program from having talked to those who are operating it in the field, this strict restriction does hamper some of the development. It would seem to me it would be desirable to maintain the same objective of the major portion of it and to allow some elasticity, and something like 10 percent be allowed, and this is not unusual.

As you know, in work programs and work relief programs, you require that people be taken from relief rolls, but always with a provision or usually with the provision that a proportion of them to provide the needed elasticity and leadership that is needed in local project enterprises can be above that line, so it would seem to me there should be some relaxation of this strict requirement.

As to your second question, it is very difficult to put a figure. The need is so great. The concept of title IX was kind of a demonstration program. The program has demonstrated the usefulness and the enormous variety of services that can be supplied to people. I always maintain that this program, the employment program is one place where the Federal dollar works twice. It puts people to work. It supplements their income. It helps lift them out of the depths of poverty. At the same time they are serving people in areas which greatly enrich the lives of the people that they are serving.

It is almost impossible to set a limit on the potential of this, if you could imagine unlimited funds available.

I think, however, that my own view is that one of the things that we have demonstrated is maybe something that we did not mean to demonstrate when we started out, and that is, as long as there is something less than full employment in the labor market, the emphasis on getting people into private employment is not as important as perhaps once we thought it was at the time when we were beginning to sell the program.

The kinds of services that are provided under these programs are the kinds of services that do not have a ready demand in the market. But that does not mean they are without enormous value. I make the distinction when I am looking at these programs between the matter of value and price. It would be very difficult to take some of the programs, some of the things that I visited in your own State, Senator, and what I see happening there, it would be almost impossible to imagine a private enterprise undertaking to take on these services. There is no market demand for them, but there is a tremendous social need we have only begun to tap. I would not be so bold as to venture

Senator KENNEDY. Certainly you would double it without any problem, would you not agree with that?

Mr. CRUIKSHANK. Indeed, easily. I think both the private contractors and the others that are involved in it have demonstrated their ability to run an efficient program at minimum overhead and cost. Senator KENNEDY. I think those are good suggestions. The flexibility, targeting of it is a key. Some degree of flexibility and still

maintain direction and thrust of the program, but provide some flexibility to deal with special circumstances, and your own strong belief that this program could be expanded efficiently, and the need to do it, and the ability to do it is there. I think that will be helpful

to us.

Senator EAGLETON. I think you were in the middle of page 6, Mr. Cruikshank.

Mr. CRUIKSHANK. The second is deletion of the unique provisions applying to Part C-Multidisciplinary Centers of Gerontologysections 2 and 3 on fiscal control, fund accounting, and providing reports. These provisions would be more appropriately located in Part D-Authorization of Appropriations Section 432-Payment of Grants—and would then apply to all title IV projects and not just multidisciplinary centers.

TITLE V—MULTIPURPOSE SENIOR CENTERS

The current legislation requires that senior centers be funded by grants or contracts approved by the Commissioner. The FCA recommends that funding of multipurpose centers be through allotment formulas and that the administration of the title be shifted from the Federal level to the State level. The FCA further recommends that an Indian tribal organization be defined as a "unit of general purpose local government" as in title III of the Older Americans Act.

TITLE VI—NATIONAL OLDER AMERICANS VOLUNTEER PROGRAM

Title VI of the Older Americans Act, national older American volunteers program, was repealed in 1973 when the Domestic Volunteer Services Act of 1973 was enacted. The FCA recommends that the foster grandparents, senior companions, and retired senior volunteer program presently administered by ACTION be returned to the Administration on Aging. This would insure the development of a comprehensive and coordinated system of services and opportunities for older Americans.

TITLE VII-NUTRITION PROGRAM FOR THE ELDERLY

The FCA has two recommendations for changes in the nutrition program for the elderly. With reference to home-delivered meals, the FCA suggests that home-delivered meals be available to older persons who, because of acute or chronic conditions, cannot attend a congregate meal site. The FCA further recommends that criteria be developed for participation in home-delivered meals and periodic contact should be maintained to determine continuing need for home-delivered meals. The FCA second recommendation refers to the participation by Indian tribal organizations as in title III of the Older Americans Act.

The FCA recommends that national priorities be set from time to time. However, the Council suggests that no mandatory percentages of funding restrictions be imposed in the setting of priorities. Thi would permit State and local agencies to determine the funding al locations for the priorities based on their assessment of need and establishment of funding priorities.

Finally, the Council recommends that the Director of the National Institute on Aging be added as an ex officio member of the Council. It further recommends that all references in the act to studies that have been completed should be deleted.

In addition to those recommendations of the Council, I, as Chairman of the Council support the National Center on Black Aged's recommendation that the Older Americans Act be amended to provide that the Civil Rights Commission conduct a study on racial discrimination in Federal programs for the aged. This Commission's recently reported study on age discrimination revealed among other things, that there is compound discrimination against minority elderly. Racial bias hits those the hardest who need the service the most. It seems quite appropriate that the agency representing the Government on matters of human and civil rights should provide the leadership in this effort.

I am also pleased that affirmative action steps are being taken to assure equal employment opportunity and participation by minority and low-income persons in aging programs.

As you know, I was appointed Chairman of the Council on July 1, 1977, or some 6 months ago. I have found that this position offers much satisfaction and challenge; then, too, it can be, at times, very frustrating.

I am pleased that the naming of the new Commissioner on Aging is now in progress and without presuming on the prerogatives of the Senate, I look forward to working with Mr. Benedict.

I shall continue my commitment to the basic philosophy of the Council and the Older Americans Act and look forward to future opportunities to address this distinguished body on matters related to one of the Nation's most valuable resources, its elderly citizens. In a book entitled "The Black Family" (1975), gerontologist Joseph Daney, Jr., said:

Our youth-oriented society is afflicted with "a no deposit, not return" syndrome carrying a tragic message of human obsolescence. In place of the understanding that each individual is a precious investment, it substitutes the concept of "no deposit." Once one has made his or her youthful contribution to society it assumed that this bottle is empty and the continuing value to society becomes nil. Like a used bottle the elderly are thrown aside.

The Older Americans Act, including its many provisions, can help or, in some instances, continue to help to make the lives of many, many older Americans more enjoyable, productive, and meaningful rather than "no deposit no return."

On behalf of the Federal Council on the Aging, I would again like to express our pleasure at the opportunity of presenting views with respect to the oversight and extension of the Older Americans

Act.

This concludes my statement, Mr. Chairman.

Senator EAGLETON. Thank you, Mr. Cruikshank.

There are two appendices to your opening statement. We have already inserted appendix B, and appendix A will now be included. Both will appear in the record.

Mr. CRUIKSHANK. We would like that.

[Appendix B appears on P. 285.]

[Appendix A referred to follows:]