further, of the unique role which the school can play by virtue of its presence and position in every size community, I would recommend the following for consideration by your committee:

1. The U.S. Office of Education continues to do all in its power to encourage State departments of education throughout the country to establish divisions of adult education adequately staffed to promote the extension of adult education as the third level of public school education. Education for the aging will flourish best when part of a more comprehensive program of public school adult education is provided at the local level.

2. Public school education for the aging be strengthened through active support by the U.S. Office of Education, the National Education Association, the National Association of Public School Adult Educators, and the Adult Education Association of the U.S.A.

3. Some form of Federal aid be appropriated to encourage the public schools to offer education for the aging in those States where no State aid presently is available for adult education and to help in those States in which it is.

Senator McNamara, I appreciate very much this opportunity to share with you the thinking of the New York State Education Department with respect to our program of education for older men and women, and some of my own thinking with respect to this important development in adult education.

Senator MCNAMARA. You have indicated that through your experience you developed specialized subjects.

What are the most popular of these classes, in your experience? Dr. RABE. I think for the most part avocational type activities that help the men and women to develop new retirement interests are perhaps the most popular.

Senator MCNAMARA. That is interesting.

Dr. RABE. Of course, they are very much interested in public affairs discussion groups, and I would place along with that the tremendous interest that all of our groups have in community service projects.

For the first time in their lives, many of these older men and women are able now, as a part of a group, to render service to the community that they never felt able to do as individuals earlier in life.

Senator MCNAMARA. Dr. Van Orman, from the figures that you gave us about States that have been fairly active in these areas, you indicate that there are probably about 38 States which do very little or nothing in this area of education for senior citizens.

Dr. VAN ORMAN. That is correct. I think you will find a fairly high positive relationship between States granting financial support from the State level and the prevalance of general adult education classes or special adult education classes for the older citizen.

Senator MCNAMARA. Do you think this is a field where the Federal Government might lend some assistance? Do you have any definite recommendation?

Dr. VAN ORMAN. My personal feeling in this area is that unless the Federal Government provides stimulatory assistance, the expectations for future development are somewhat limited.

Senator MCNAMARA. Do you think, as far as the retirees among NEA teachers are concerned, that you probably have about as great a problem as any group of retirees? It seems that the so-called pension program was set up in the very old days, as they say, and many of the teachers who are retirees now are getting surprisingly low pay

ments on the insurance that they paid or the payments that they made in premiums over the years.

I think this is one of the things that I run into that is a real part of our problem.

You did not make any reference to that because you are stressing the educational phase but I think you, as a group, have in many of the larger cities, organizations of these retired teachers or educational employees. Is there a national organization?

Dr. VAN ORMAN. Yes; there is a department of the NEA, which is the National Association of Retired Teachers. They have a membership of about 77,000. They are very active. They have sponsored at least nine tours to Europe for their group. They have a home in California, a retirement home, and they have been very active in working on retirement insurance.

I do not know whether Dr. Morgan is familiar with this or not. Perhaps Dr. Morgan could speak to this. I am sure he is a member of this group.

Senator MCNAMARA. Doctor, do you have something to say as to this special group?

Dr. MORGAN. I am a life member of it, and I addressed their meeting out in St. Louis some weeks ago. They are doing one of the finest pieces of work that is being done anywhere in America. They are helping these teachers to solve their problems. They have an insurance program similar to that of the retired civil service employees, and they are sponsoring travel and educational projects.

I think there is more potential leadership in the Association of Retired Teachers than anywhere else, because they are accustomed to leadership.

The problem you mentioned is very serious, Mr. Chairman. There are teachers in this country who have given their lives to public service whose retirement is less than $50 a month.

Senator MCNAMARA. It is only recently that they have the opportunity to be covered by social security, is that right?

Dr. MORGAN. It varies widely. Some States have very good teacher retirements that are independent from social security. Some have a combination. Some depend entirely upon social security, but in many of the States the teachers who retired before they could get these benefits have almost nothing to live on.

Senator MCNAMARA. Thank you very much.

We have some other people to testify.

I am sure you would be interested in listening to this testimony, especially that of the American Library Association.

Dr. VAN ORMAN. Fine.

I would like to conclude by expressing our appreciation for the work of the committee. I feel that the educational world is concerned and ready and able to assist the committee in this project.

I would like to file with the subcommittee bulletin No. 8 entitled "Retirement, a Second Career."

Senator MCNAMARA. We will include those in the record at this point.

Will you see that the reporter gets copies of them?

Thank you very much.

Dr. RABE. Thank you, Senator McNamara.

Senator MCNAMARA. Mr. Henry Carter, president of the National Conference of Forty Plus Clubs.

STATEMENT OF HENRY CARTER, PRESIDENT, NATIONAL CONFERENCE OF FORTY PLUS CLUBS OF THE UNITED STATES

Senator MCNAMARA. Do you have a statement?

Mr. CARTER. I have a statement which Mr. Spector is having reproduced. I think it will be ready probably tomorrow.

Senator MCNAMARA. You may proceed.

(The prepared statement of Mr. Carter follows:)

PREPARED STATEMENT OF HENRY CARTER, PRESIDENT, NATIONAL CONFERENCE OF FORTY PLUS CLUBS

Mr. Chairman, members of the committee, by way of introduction I would state that my name is Henry Carter; I am a practicing lawyer in Alexandria, Va., and in Washington; and I am president of the so-called National Conference of Forty Plub Clubs. I am not here to ask for anything except the opportunity of telling you a little about the 40-plus movement.

The 40-plus movement represents a self-help effort to overcome the age barrier in employment, on the part of men over 40, primarily business executives and professional men from the middle brackets of business and industry. It thus represents a segment of the unemployment situation which is relatively small, numerically speaking, but which is unusually rich in skills and experience, men who would normally constitute the backbone of any business enterprise. They are men who are accustomed to taking responsibility and making decisions, men who are used to working with others in business organizations and enterprises. In military terms they would be the colonels and field officers of business. They thus have a certain community of temperament and background which makes it possible for them to cooperate more readily and effectively than would be possible in a broader segment of the unemployed. That they are unemployed is due to a variety of reasons, mostly beyond their control-there has been an illness, theirs or in their family, which has compelled them to drop out of their organization; many have been called or have volunteered for military or other Government duty; many of them are on the beach as a result of business mergers, or a closedown of the business employing them. They are not deadbeats, nor are they business or social misfits. On the contrary, they are as a group self-respecting and experienced men who, after a period of useful and responsible employment at good pay, suddenly find themselves cast on the cold waters of unemployment, especially cold for men who have passed 40 or who are considered too old to qualify for the pension and retirement systems which have now so taken over business organizations, large and small.

The 40-plus movement started in Boston in 1938, when, in the aftermath of the business recession of 1937, a group of unemployed business executives and professional men combined to pool their experience and contacts to find jobs for themselves and each other. Highly successful in the Boston and New England area, it spread to New York and other areas, and within 2 or 3 years there were 25 to 30 active 40 plus clubs in principal cities of the United States, and 2 or 3 in Canada. The war, with its enormous demands for military and industrial personnel, in effect removed the need for many of these clubs, and only eight survived-Boston, New York, Buffalo, Philadelphia, Chicago, Detroit, Los Angeles, and San Francisco. These were joined by Washington in 1953, and in 1958 by Denver and Fort Lauderdale.

In 1956 the National Conference of Forty Plus Clubs was established, with headquarters in Washington, to act as agent and representative of the clubs(1) to assist the member clubs in enlarging employment opportunities for 40 plus members; (2) to act as a channel for the exchange of information and for discussion among the clubs; (3) to serve as a convenient central point of contact with governmental agencies, large corporations, foundations, research organizations, newspapers, and magazines of national circulation; (4) to emphasize to the public and employers generally the business value of employing older men of mature experience, knowledge, and judgment.

As they now exist, the Forty Plus Clubs may be described as nonprofit associations of men of executive and professional background, over 40 years of age, with mature experience and abilities and with good records in responsible positions at remunerative salaries (as defined by each individual club), who have combined in group efforts in their various communities to secure employment for themselves and each other. They are independent, self-established and self

governing grassroots organizations formed by local initiative in their various communities to meet the particular needs of their members and local conditions of employment. They are self-supporting through membership dues, separation contributions, contributions from the local communities and similar sources. They are self-maintaining in that the work of finding employment for the members is done by the members themselves, usually on a basis of 2 days a week while unemployed, without compensation, on a basis of mutual cooperation and self-help. They are assisted in their respective communities by advisory boards of representative business and professional leaders. They are not employment agencies, as we ordinarily understand that phrase.

Since the Forty Plus Clubs operate upon a basis of group action in their respective communities, they are seldom in a position to assist men located far outside the communities in which they exist. However, since the problem of employment for men over 40 is a difficult one in all parts of the country, there would appear to be room for the formation of Forty Plus Clubs in many communities not now covered. And while experience suggests that a Forty Plus Club, to be successful, should cover in its activity a population area of at least 1 million, nevertheless it is possible that groups organized on 40-plus lines might be effective in smaller communities, and it is hoped that such possibilities will be explored by local groups.

In the last 2 years two new clubs have been formed-Denver and Fort Lauderdale and two have been compelled to close their doors-Detroit and Buffalothis due to the sharp impact in those particular cities of the 40-year criterion in employment. The current business boom and high rate of employment have cut the membership of the surviving clubs, some of which are reported in difficult financial straits, but if there should be any slackening in the business pace, or a business recession, the Forty Plus Clubs will find themselves in renewed demand, for the record unfortunately shows that men over 40 are the first to be let go, and the last to be rehired. In these circumstances the role of the national conference, which has been financed by contributions from the clubs, has been a limited one, but it has handled a large volume of inquiries regarding the Forty Plus Clubs; it has been instrumental in the establishment of the two new clubs and has laid the groundwork for the formation of others; it has established useful contacts with such agencies as Departments of Labor, Health, Education, and Welfare, and Commerce; with Brookings Institution, the Ford Foundation, the Committee for Economic Development, and the National Planning Association; it has publicized the 40-plus problem on the air and by magazine and newspaper articles; and it has held itself ready to appear before committees such as this one.

To evaluate the work of the Forty Plus Clubs, I think it is necessary to look to what I shall call reputation, rather than to any organized set of statistics. In actual numbers of men placed, the number would be very small indeed as compared with the total number of unemployed or reemployed. However, in terms of its own membership, the percentage of placements it has made is high, perhaps 60-70 percent. More than this, it has offered to its members the great gift of hope and sense of belonging to something, essential factors in restoring morale, and for this it stands high in the communities in which it operates. The effect of this has to be seen in individual cases to be believedhopeless, bitter men restored to hopefulness, self-confidence, and business usefulness. Its effectiveness lies, I think, in the existence of the clubs as individual self-supporting entities in which every member has his part to play. As such they do not seek subsidies or legislative aid-in fact such subsidies or aid might smother the spirit which keeps them going. At all times they are dependent on themselves and on the good will of their respective communities. When the need is great they will flourish, and when need slackens, as at present, they will tend to fall off.

A possible exception to this rule might be made in the case of the national conference which is supported by the necessarily modest contributions of member clubs, and any philanthropist who might wish to finance its missionary activities on a more adequate scale might be pleasantly surprised by the results. However, no such philanthropist has yet appeared and none at present is in sight, and we do not feel that there is a duty on any individual or organization, public or private, to supply this lack. But if voluntary financial support should appear, we would know what to do with it.

Unemployment among older men, especially in these days of mass industry, mass labor, and mass markets, is far too complex a problem to be solved by any particular formula. Indeed, it may be solvable only in part in the best of circumstances, but there are things which can be done which can help.

Federal, State, and city governments can give special attention to removing any age barriers in their civil service and State and city services. Also, Federal and State employment services can establish special measures to place older workers, especially those with executive and professional background. And in these two fields commendable progress has been made at Federal, State, and city levels. However, by far the greatest employer in the United States is private industry, and here we find a field which is swayed by irrational age taboos, and more especially is shackled by a network of welfare, retirement, and pension plans which bind workers and executives into their companies, and which present a formidable barrier to the reemployment of anyone over, say 40in many cases the age limit is even less. I am not opposed to retirement and pension plans as such-far from it--but must they be so rigid and so exclusive? Above all, must they be administered so as to exclude older men and womenwith good records merely because they have passed some arbitrary age line? Is it sound public policy? Is it even good business?

For this I have no answer save to ask the question, and to ask private industry and the insurance companies who devise and operate these plans to ask the question of themselves. It is an urgent question, becoming more urgent as the lifespan of Americans increase. Do we want a third of the Nation on old-age relief, especially when so many of them can and want to work at useful occupations? It is a matter more of public education than of legislation, and as such it is attracting more and more attention, and more and more consideration. There are many voices of protest and concern to be heard, among them the voice of Forty Plus, and your committee affords a most important forum in which they can be heard. Perhaps more answers will come as these hearings and others like them proceed, and I believe that in providing this forum the Senate is fulfilling one of its most important and praiseworthy functions.

I thank you for your consideration.

Mr. CARTER. My name is Henry Carter. I am president of the National Conference of 40-Plus Clubs of the United States.

Te 40-plus clubs of the United States are concerned with the area that Mr. Cowan so forcefully pointed out, the area of the old worker where the man over 40 cannot get a job and he is too young to die. A little more precisely, it is the group of men between 40 and 60 or 65 who are still ablebodied, who have good experience, good records, good abilities, and yet, owing to the so-called age barrier-I do not know what it is based one but it is a real one-cannot get jobs.

I think all of us who remember the depression of 1935 will recall that anybody can become unemployed for reasons not of his own controlling. That is still true to a lesser degree than in those unhappy days, but things like this happen. There is an illness in thet family. A man gets sick and has to give up his job and go away, or his wife gets tuberculosis and they have to move to a better climate, or there are any one of a dozen different medical accidents of that sort.

Also there are cases where men find themselves out because of a change of management; or the company merges with another company and they are out on the street and through no fault of their own. Others of them go into the armed services. They may have to stay longer than they expected. Others may have taken Federal or State positions and, when they get through their stint with the Government, State or Federal, they come back and there is no job for them.

It is those groups that the 40-plus clubs were formed to help. The 40-plus clubs started in Boston about 1938 in the aftermath of the 1937 recession, when a group of unemployed executives and depression men over 40 who found themselves constantly stymied by this 40-year bugaboo in getting reemployment decided to try pooling their efforts