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Deschip1cs Income Adequacy and Maintenane DOCUMENT RESUME ED 050 232 VT 011 746 TITLE. Manpower Report of the President. Message ircm the President of the United States Transiitting An Annual fepert on the Progress or ranyower Frogrars. INSIIIUTION Congress of the U.S., Washington, D.C. HOUSE Committee ON Education and labor. FEECF1 NO House-Doc-302 PUE DAIE 68 NOIF 329p. AVAILABLE T.ROM Superintendent cr Documents, U.S. Government Frintino Office, Washington, D.C. 20402 (L1.42/2:71, 52.50) HERS PRICE EDRS Price M ? -$U.65 HC Not Available from EDFS. DESChIP1CS *Annual Reports, Culturally Disadvantaged, Employment Patterns, *Employment Prob!ems, Employment Statistics, Employment 'Trends, Equal Opportunities (Jobs) ,Family income, *Federal. Frograms, Government Role, *Manpower Development, *Manpower Needs, Manpower Utilization, Public Policy, Statistical rata, Unemrloyment AESIFAC1 This annual manpower report analyzes manpower needs, resources, utilization, and training. Problem areas which are considered include: (1) income adequacy and maintenane, (2) quality of employment, (3) equal opportunity, (4) special problems of the disadvantaged. (5) trarsitj.on Iron, school to work, and (6) geographic harriers to employment. The labor force lmplica'ciors of the continuing eccnomic growth in 1967 are discussed, arl new programs reflecting increased emphasis on the disadvantaged ace T:eviewed. (cH) 90th Congress, 2d Session - - House Docurrrmt No. 302 S DEPARTMENTOF HEALTH, EDUCATION A WELFARE OFFICE OF EDUCATION THIS DOCUMENT HAS BEEN REPRODUCED kY.AL TO AS F ECEIVED FROM THE PERSON OR ORGANILAT.ON ORIGINATING IF POINTS OF VIEW OA OPINiC NS STATED DO NOT NECES- SARILY REPRESENT OFFICIAL OFFICE CF ECU CATIOV POSITION OR POLICY MANPOWER REPORT OF THE PRESIDENT MESSAGE FROM THE PRESIDENT OF THE UNITED STATES TRANSMITTING AN ANNUAL REPORT ON THE PROGRESS OF MANPOWER PROGRAMS N MAY 1,196:.).Referred to the Committee on Education and Labor and ordered to be printed with illustrations r U.S. GOVERNMLNT PRINTING OFF'CE IG-430 0 WASH 1NOTON 11911 LETTER OF TR= NSMITTAL To the Congress of the United States: It is a traditional event for the President to submit to Congress an it,,,nual report on the progress of our manpower programs, Although the custom is long-established, there is nothing routine about this report or its subject: jobs for our ciiizens: more useful, more satisfying jobs to give Americans a sense of full participation in their society. Four months ago I told Congress that jobs are "the first essential." In my first special legislative message this year, I proposed that Congress launch a new $2.1 billion manpower programthe most sweeping in our history. At the same time I called on the leaders of American commerce and industry to form a National Alliance of Businessmen to provide jobs for hundreds of thousands of the hard-core unemployed. On April 25, the Alliance reported to me on its progress so far: More than 500 executives, whose talents command more than $15 million in salaries alone, have volunteered to work full time in fifty of our largest cities. They are assisted by 7,000 other volunteers. By mid-April, the Alliance had received pledges of 111,000 jobs-60,000 permanent jobs for the hard-core unemployed, and 45,000 summer jobs for poor young people. --Labor unions, the Urban Coalition, Chambers of Commerce, churches, schools and many civic groups have joined this crusade to give the wc,-ds "full employment" a new meaning in America. Meanwhile, the Governmen"..'s new Concentrated Employment Progra n has been active in more than 59 cities meshing its effort: with the National Alliance of Businessmen. A.nd the administration of our job programs has been gRen new energy through reorganization and strong leadership. These are hop,iti bcqinning-s. But certainly they are no grounds for complacency. In every city, toere are men who wake up each morning and have no place to go; men who want workbut cannot break the confining welfare chain or overcome the barriers of lifelong discrimination, or make up for the lack of schooling and training. When we talk about unemployment, we are talking about these citizens, who want and need personal dignity and a stake, in America's progress. When we talk about manpower programs, we are talking about hope for these Americans. And every time we tabulate new statistics of success in these programs, we are recording a small personal triumph somewhere: a man trained; a youth given a sense of his value; a family freed at last from welfare. That hope is what makes this great task so exciting--and so vital. To every member of the Congress, upon whom our manpower programs depend, I com- mend this report. I urge the Congress to support these. programs by approving the $2.1 billion manpower budget requ,mit I recommended in January. LYNDON B. Jonxsos. TEE WHITE HOUSE, May 1, 1968. 2 CONTENTS Page MANPOWER MESSAGE OF THE PRESIDENT__ Ix REPORT ON MANPOWER REQUIREMENTS, RESOURCES, UTILIZATION, AND TRAINING I.INTRODUCTION BY THE SECRETARY OF LABOR__ 1 2.NEW PERSPECTIVES ON MANPOWER PROBLEMS AND MEASURFS 13 Joblessness ana underemployment 17 Unemployment 18 Underemployment 20 People not looking for work who want jobs 22 Informatio.atl needs 24 Adequacy of workers' earnings 20 Minimum wage standards 26 Annual earnings 28 Informational needs 33 The concept oi Ea-employment 34 Rates of sub-employment 35 Strengthening the data on sub-employment 35 Income maintenance for workers 37 Unemployment 37 Sickness and disability compensation 42 Retirement protection 45 Some implications and data needs 46 The quality of employment 47 Psychologies' impact of work 47 Labor standsrds protection 56 Equality of opportunity 59 Negroes 59 Other ethnic minority groups 64 Informational. needs 69 Page 2. NEW PERSPECTIVES ON MANPOWER PROBLEMS AND MEASURESContinued Manpower requirements and resources 70 Current job opportunities 70 Other job market indicators 72 Informational needs 75 Toward the development of manpower indicators 77 Indicators of emerging problems 77 Relationships with ether areas of social concern 79 Conclusion . 79 3. BARRIERS TO EMPLOYMENT OF THE DISADVAN- TAGED The sub-employed 83 Unemployment and sub-employment in poverty areas 84 Characteristics of slum residents 85 Barr;ers to employment 86 Social-psychclogical barriers 86 Access and institutional barriers 89 The irregular economy of poverty areas 94 The AFDC rnotnera cas,J study of sub-employment_ V5 Length of tome on welfare_ 96 Welfare and work 97 Some implications and program developments 99 Seme considerations affecting manpower policies 99 Objectives in job development 99 Social objectives 101 Needs and strategies in manpower policies 103 Toward further integration of manpower programs 103 Toward opening more jobs for the sub-employed 104 Toward adequate resources 106 Toward progressive improvement in manpower services...._ 107 Limitations on manpower objectivva_ 108 4. BRIDGING THE GAP FROM SCHOOL TO WORK.. 109 The problem 111 Ways a improving the transition process 114 Experiences of other nations 117 Vocational guidance and ounseling 118 Vocational education 118 Youth wage policy 118 Some father questions 119 Conch, sior.s 122 4 Page 5. GEOGRAPHIC FACTORS IN EMPLOYMENT AND MAN- POWER DEVELOPMENT 125 Some geographicdimension,: of employment and economic development 129 Urban America 129 Rural America 135 Development regions 139 Labor areas 142 Migration and industrial location factors _ 143 Migration 143 Industrial location factors 148 Federsi Government programs 150 Economic development programs 151 Housing and urban development 154 Federal procurement 155 Research and development 158 Transportation programs 159 Other programs 160 Conclusion 162 6. REVIEW OF MANPOWER DEVELOPMENTS IN 1967 TRENDS IN EMPLOYMENT AND UNEMPLOYMENT_ 169 Summary of developments in 1987 170 The economic background 172 The pattern of empl)yment growth. 174 Industry employment trends 174 Government-generated employment 180 Labor farts growth, occupational developments, and unemploy- ment 182 Employment and occupations 183 Unemployment 184 Negro workers 185 Productivity, output, and employment 186 Implications of recent growth 187 Prospective labor force developments 189 Some conclusions 190 NEW DEVELOPMENTS IN MANPOWER PROGRAMS__ 193 Concentration of manpower forces.. 194 The Concentrated Employment Prop am 135 The CAMPS Program 196 Model Cities 197 N.ighborhood Service Centers 197 The Special Impact Program 198 The Concerted Services Program 198 Human Resources Development 199 Page NEW DEVELOPMENTS IN MANPOWER PROGRAMSContinued Enlisting private industry cooperation 199 The Test Program 200 The Ten Cities Program 201 The JOBS Program 201 Meeting the needs of the individual 202 Work-experience programs 202 New developments in MDTA training programs 205 New techniques for reaching and serving the disadvantaged_ 206 Meeting the problems of special groups 208 Services to returning veterans 210 1968 and the future 2i2 STATISTICAL APPENDIX 213 6 MANPOWER MESSAGE OF THE PRESIDENT 7 To the Congress of the United States. In this, my first message to the Congress In that same period, the unemployment rate following the State of the Union Address, I ha.: dropped from 5.7 percent to 3.8 percent propose: the lowest in more than a decade. A $2.1 billion manpower program, the The question for our day is this: In an largest in the Nation's history,to help economy capable of sustaining high employ- Americans who want to work get a job. ment, how can we assure every American who The Nation's first comprehensive Occu- is willing to work the right to earn a living? pational Health and Safety Program, to We have always paid lipserviee to that right. protect the worker while he is on the job. But there are many Americans for whom the right has never been real: The boy who becomes a man without THE QUESTION FOR OUR DAY developing the ability to earn a living. The citizen who is barred from a job because of other men's prejudices. Twenty years ago, after a cycle of depres- The worker who loses his job to a sion, recvvery.
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