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UNITED STATES OF AMERICA (iongrcssional1Rccord

PROCEEDINGS AND DEBATES OF THE 924 CONGRESS SECOND SESSION

VOLUME 118-PART 19

JULY 17, 1972 TO JULY 25, 1972 , (PAGES 23915 TO 25346)

UNITED, STATES GOVERNMENT PRINTING OFFICE, WASHINGTON, 1972 July 25, 1972 CONGRESSIONAL RECORD -SENATE 25229 have a vote on this matter as soon as Mr. President, I ask unanimous con­ President, and established a Joint Eco­ possible, while memories are fresh and sent that the name of the distinguished nomic Committee in the Congress. while we know exactly what we are do­ junior Senator from Texas (Mr. BENT­ It is our belief that this legislation will ing. If possible, I would like to see if we SEN) be added as a cosponsor of the accomplish for the broad range of social could work out an agreement to bring pending measure. policies what the Employment Act has up this amendment, and I would be de­ The PRESIDING OFFICER. Without done so well in the economic sector. By lighted with a time limit before all the objection, it is so ordered. declaring a new national objective and other amendments that relate to mili­ Mr. MONDALE. Mr. President, this increasing the quantity, quality, and visi­ tary weapons, and so forth, have been bill was reported from the Committee bility of information needed to pursue brought up and considered. Would the en Labor and Public Welfare on June 15. that objective, we should markedly ad­ Senator be willing to work out such an 1972. I am proud to state that it has 24 vance our prospects for effective social agreement? cosponsors from both sides of the aisle. action. Mr. STENNIS. I am always willing to The Senator from New York (Mr. Mr. President, by now we have had a consult with the Senator from California JAVITS), who is the principal cosponsor series of studies by prestigious commis­ or anyone else on the business of the of the bill, has contributed very signifi­ sions which have told us about the gap Senate. I have outlined briefiy what to cantly to the bill, inclUding the spon­ which remains in our society between me seems to be the better course. sorship of a most important amendment the promise of full opportunity and the But those things rest with the Senate, to it. This amendment appears as title II realities of deprivation, powerlessness, and I will confer about them. I believe of the bill. and poor fortune into which millions that we can finish the military part this A predecessor bill was extensively con­ of our citizens are born. The increasing week and will have a better chance to de­ sidered by the Subcommittee on Govern­ affluence of great segments of our society bate the other part next week. ment Research of the Government Op­ has merely sharpened the division be­ The Senator from California already erations Committee during the 90th Con­ tween them and those who have not yet has referred to the confusion here yes­ gress under the distinguished leadership benefited from the phenomenal growth terday, to apparent inconsistencies in of the Senator from Oklahoma (Mr. in our economy, in our technological and the shifting of the votes. Maybe we had HARRIS) . An identical bill was considered scientific base, and in our educational better let the dust settle a little and get and passed by the Senate in the second systems. a chance to reconsider. I think we need session of the 90th Congress. We have As a result, the demands of the de­ some reconsideration of some of those now accumulated five volumes of hear­ prived for their fair share in the bene­ votes. So, anyway, we will get at it and ings on this bill and a consensus in sup­ fits of our society and the responsive­ see what can be worked out. pe·rt of it has been growing throughout ness of our political institutions have I thank the Senator very mUCh. the Nation. both increased dramatically. At the same Mr. CRANSTON. I thank the Senator Testimony in support of the bill has time, however, we have also become from Mississippi. We tried to get con­ been heard from a number of former acutely aware of the fundamental inade­ sideration last week and reconsideration Cabinet members and White House quacy of the information upon which last night and failed on a tabling motion. aides. Former HEW Secretaries John social policies and programs are based Gardner and Wilbur Cohen and former We have seen this phenomenon Treasury Secretary Barr have testified pressed upon us repeatedly and often FULL OPPORTUNITY AND NATIONAL tragically. One result of our information GOALS AND PRIORITIES ACT for the bill. Former Labor Secretary Wirtz has spoken publicly in favor of it. gaps is that national problems go nearly The PRESIDING OFFICER (Mr. A number of thoughtful spokesmen in unnoticed until they are forced upon us STAFFORD). The hour of 2 p.m. having the fielJ of public affairs have supported by some significant and shocking event. arrived, under the previous order, the the bill. The late Whitney Young was SUddenlY, we learn of widespread hunger Senate will now proceed to the consider­ among them. A special study for the in America, of the rapid deterioration of ation of Calendar No. 827, S. 5, which National Academy of Science's National our enVironment, of dangerous tensions the clerk will state. Research Council included a recom­ and unrest in our great urban centers, of The second assistant legislative clerk mendation for enactment of this bill. the shocking conditions under which read as follows: The report of the Commission on Vio­ migrant farmworkers live, ..nd of the S. 5, to promote the pubHe welfare. lence, headed by Dr. Milton Eisenhower, absence of decent medical care for tens The PRESIDING OFFICER. Under also recommended enactment. of millions of our citizens. the agreement, there is a time limitation Few objections have been raised to We desperately need ways to monitor on t.his bill of 1 hour. Who yields time? enactment of this measure and those such problems before they destroy or Mr. MANSFIELD. Mr. President, I have dealt principally with the orga­ seriously damage our society. suggest the absence of a quorum and ask nizational aspect. It has been claimed Another tremendously expensive con­ unanimous consent that the time be that existing elements in the Executive sequence of our lack of adequate in­ taken equally out of both sides. Office of the President can do the job. formation is that we devise and operate The PRESIDING OFFICER. Without However, I would like to point out that programs based on myth and ignorance objection, it is so ordered, and the clerk former Budget Director Zwick and or guess and supposition. Congress is now will call the roll. former Special Assistant to the President groping with the problem of welfare re­ The second assistant legislative clerk Califano have testified in support of the form, but it is painfully evident that we proceeded to call the roll. bill. They now agree that the develop­ lack some of the basic information which Mr. ROBERT C. BYRD. Mr. President, ment of an annual social report and of a we need in order to design a system in I ask unanimous consent that the order social indicators system would make an which we could all have confidence. Sim­ for the quorum call be rescinded. important contribution to dealing effec­ ilar problelllS are presented with respect The PRESIDING OFFICER. Without tively with social pr0blems. A Council of to urban renewal, mass transportation, objection, it is so ordered. Social Advisers in the Executive Office air and water pollution, and health de­ Mr. ROBERT C. BYRD. Mr. President, would assist the President in stimulating livery systems. In practically every major I ask unanimous consent that the time and guiding these developments and in social problem in this country, it is not consumed under the quorum call just preparing an annual social report to be only a question of resources; it is not ended be charged against the time on submitted :,y the President to the Con­ only a question of will; often it is simply the bill allotted to the distinguished Sen­ gress. a question of the unavailability of the ator from Minnesota (Mr. MONDALE) The bill is patterned generally after information we need with which to deal rr.ther than against both sides. the Employment Act of 1946 which, for effectively with the problem. The PRESIDING OFFICER. Without the first time, established as a national After years of experimenting with such objection, it is so ordered. goal the achievement of maximum em­ techniques as program planning and Who yields time? ployment, production, and purchasing evaluation systelllS, we still are quite ill­ Mr. MONDALE. Mr. President, I yield power. To assist in achieving that goal, equipped to measure what our existing myself such time as I may require in the Employment Act established the programs do accomplish. And we have no 11'.aking an opening statement on the Council of Economic Advisers, provided adequate means to compare the costs and pending measure. for the annual economic report of the effectiveness of alternative programs. I 25230 CONGRESSIONAL RECORD -SENATE htly 25, 1972 A Council of Social Advisers, dedi­ solution of human problems. We have a vise the rlghest officiar in the land on do­ cated to developing indicators of our tactical approach, a great deal of data, mestic programs. social problems and progress, could well and a great deal of minute detail in small He recounted several instances of the be a source of enormous savings to the areas and a failure to develop a proper phenomena to which I have made refer­ taxpayer as well as of more effective so­ overall approach to dealing with our ence. For example, on one occasion, the lutions to the problems we face. Such a problems. Much of this stems from igno­ Secretary of Health, Education, and council, taking full advantage of the lat­ rance about basic facts which is found Welfare was in conference with Mr. Call­ est developments in platming, program­ at the funding level. fano. He was asked how many people ing, and budgeting systems, in compu­ Mr. President, I have now served in were on welfare, who they were, and terized data collection and statistical the Senate nearly 8 years. Along with all the rest. Since we are spending sev­ methodology, in systems analysis and many of my colleagues, I spend most of eral bUllons of dollars one would have social accounting, could unlock the enor­ my time dealing with the human prob­ thought that information would be im­ mous potential of the social sciences to lems with which the average American mediately available. assist the Congress and the Executive is confronted. The Secretary thought the informa­ in developing and administering public I never cease to be amazed by the tion would be available to him as soon policy. abundance of evidence concerning how as he returned to his office. He said that A Council of Social Advisers would not little we seem to know at the Federal he would send it right back. As a mat­ itself, be a new decisionmaking forum. level about what is really going on. ter of fact, it took HEW almost a year Rather, as a social monitoring, data Thus, something as elementary as de­ and a half to find out who was on wel­ gathering, and program evaluation agen­ cent nutrition-something so essential fare. Mr. Califano said this was a com­ cy, it would provide the President and to a sound body and a sound mind-was mon experience with basic and funda­ his staff agencies with much of the in­ something about which the Federal Gov­ mental human problems, to find that formation needed to make policy and ernment was almost totally ignorant in not even the President would have avail­ program judgments. The President has 1967. We knew how many soybeans were able to him the basic data necessary to available the broad range of economic grown. We knew how much money was make the choices upon which our very information now furnished by the Coun­ being spent on the direct commodity dis­ civilization depends. cil of Economic Advisers. The Council tribution program, the food program, and He commented in this way about the of Social Advisers would fill a significant so on. But no one had the slightest idea issue of hunger: gap in the information system which is whether there was widespread hunger The even more shocking element to me is needed to buttress the policymaktng ap­ and, if there was, where it was to be found that no one in the federal government In paratus under the President. and why, what the cost of feeding the 1965 knew how many people were hungry, While title I of the bill, with its new hungry was, what the cost of not feeding where they were located geographically, and Council of Social Advisers and its new them was, what the cost of the program Who they were. No one knew Whether they social report, should greatly augment were chUdren, elderly Americans, pregnant was, or any of the other fundamental mothers, black, white, or Indian. the capacity of the Congress to make in­ questions directly related to the issue tel11gent policy decisions, title II of the of the most basic necessity of American Then Mr. Califano concluded with this bill is even more significant with respect life itself. The same was true with respect statement: to strengthening the Congress. I was de­ to decent housing. The disturbing truth is that the basis of lighted to cosponsor the amendment to recommendations by an American Cabinet the bill which was offered by the Senator In 1967, even though we should have officer on whether to begin, eliminate or ex­ from New York (Mr. JAVITS) to create a been warned earlier, the major American pand vast social programs more nearly re­ new congressional staff office of goals and cities began to explode in our faces. New­ sembles the intUitive Judgment of a bene­ ark, Detroit, and one community after volent tribal chief in remote Africa. than priorities analysis. the elaborate sophisticated data With which Mr. President, the proposal embodied another literally blew up in an astonish­ ing and cataclysmic explosion causing the Secretary of Defense supports a major in title II, offered by the distinguished new weapons system. When one recognizes Senator from New York, (Mr. JAVITS) the widespread loss of human life, and how many and how costly are the honest comes at a very propitious time. We now human injury, and millions of dollars mistakes that have been made in the De­ know, based upon studies of the Brook­ in property damage, and an emotional fense Department despite its sophisticated ings Institution and upon other sources, and cultural shock to Americans which information systems, It becomes frightening that in terms of general resources gen­ we are still in the throes of. None of this to think of the mistakes which might be was anticipated by the Government. made on the domestic side of our Govern­ erated under the existing tax rate, we ment because of lack of adequate data. are in the middle of one of the deepest When hearings were started, this Na­ budget deficits in history, and the deficit tion was thrashing around; Congress and Mr. President, for 5 years the Congress is back-to-back with another budget def­ the Senate were thrashing around; mem­ has been considering its need for addi­ icit - with predictions next year of a bers of the Cabinet and leading members tional information about social pro­ bUdget deficit up to $40 million. of the executive branch were thrashing grams so that it can properly discharge Mr. President, the predictions based around, all trying to find out what was its obligations to the public. The "power on economic growth and the existing tax causing such a fundamental occurrence of the purse" has little meaning if we do rate show a budget thinly balanced for as this outrageous, heartbreaking phe­ not have the data and analyses to exer­ the first time only 3 years from now. So, nomenon in American life. cise that power meaningfully. The pres­ whatever may have been the case in the We could go from this example to ent and last administrations have agreed past, this Congress and this Government other examples. We lack an institution that we need this kind of information. must judge more wisely than we ever which takes not a tactical approach but However, they have insisted that it could have before. This applies to social fields, a strategic approach to human problems be prOVided without any organizational as well as to other aspects of the budget. which this society faces. We need to change. By now, it is clear that this is We can no longer rely, as we have in chart the social health of this country not so. We must have a governmental the past, on good will alone. We need far and seek to go forward; not, as John agency charged by law with developing more information-and far better analy­ Gardner said, stumbling into the future. a system of social indicators or we will sis-and far better strategies for dealing Instead, we must try to come up with never have such a system. with the human problems which face the analysis, facts, and figures, and, as Mr. President, for that reason I am America than we have ever had before, someone said, the "hot data" to help us hopeful the senate will approve the if there is any hope of success in those understand our society and what we pending measure, that it will soon be fields. must do to make it more effective than adopted by the House and sent to the That is what this bill is all about. One it is in meeting this Nation's human President for signature. of our experts said that the Federal Gov­ problems. The PRESIDING OFFICER. Who ernment has been pursuing increasingly One of our most impressive witnesses yields time? a strategy of suboptimization ,,:hich he was Mr. Joseph Califano who formerly Mr. MONDALE. I yield such time to defined to be a strategy of doing better served as adviser on domestic programs the senator from New York as he needs. and better with little things and worse to President Johnson. More than any The PRESIDING OFFICER. The and worse with important things. other man he was in the Nation's hot Senator from New York has his own We lack a strategic approach to the seat trying to develop a program to ad- time. July 25, 1972 CONGRESSIONAL RECORD - SENATE 25231 Mr. TAFT. Mr. President, if the Sena­ which the Council of Social Advisers Enactment of S. 5, the Full Opportunity and National Goals and Priorities Act, would, tor will yield, I would like to clarify could. I SUbmit, provide many of these resources something. It cannot be expected to provide in and the capacity to use them efficiently. Mr. JAVITS. Mr. President, as I shall the social field what the independent At present, the Congress is forced by Its favor the bill, I would like to draw 10 Council of Economic Advisers has of­ fragmented committee system to pursue what minutes from the time of the Senator fered in the economic field. we have called a 'let's see what we gave them from Minnesota because I intend to yield The administration is opposed to the last year and give them a little more this as much time in opposition as is neces­ title, but personally, it is my judgment year' approach; an approach that precludes sary to the Senator from Ohio. that they are passing up a great oppor­ major resource reallocations by the legisla­ tive branch. The Congressional Office or Goals The PRESIDING OFFICER. The tunity to reach their own objectives by and Priorities created by S. 5 would provide Chair recognizes the Senator from New having a new suplementary source of in­ Senators and Representatives with the means York. The Senator from Minnesota has formation and perspective which could to analyze the budget as a whole for the first but 6 minutes remaining. provide new input into the decisions of time. Mr. JAVITS. If the Senator will yield the Domestic Council, as well as the Congress also lacks the abil1ty to generate to me 5 minutes that is all right. Office of Management and BUdget, alternative Federal budgets of its own; a con­ Mr. MONDALE. I yield the Senator 15 which are made in legion with admin­ dition which engenders congressional de­ minutes. istering agencies. pendence on the executive branch with re­ spect to the major contours of the budget, The PRESIDING OFFICER. The Sen­ Title 2 represents an approach for and hence, the shape of our priorities. The ator from New York is recognized for 6 Congress, and the effort is to give Con­ establishment of an Office of Goals and Pri­ minutes. gress an agency to deal with priorities orities with the mandate and capacity to pro­ Mr. JAVITS. Mr. President, as has and goals on its own; in other words, we duce a variety of bUdgets from which to been said I authorized title II of this bill. wish to give it a total overview of the choose, would end this unhealthy depend­ Before I go into that I would like to say budgetary situation. In the first place, ence. I support strongly title I. As the ranking this is essential. Finally, Congress currently is compelled to minority member of the Committee on Mr. President, we learned that it is operate without the social data required to choose rationally between alternative re­ Labor and Public Welfare and the rank­ essential this morning from the new source uses, to evaluate program effective­ ing minority Senator of the Joint Eco­ Secretary of the Treasury, George ness, and to fOI'lIlulate a comprehensive pub­ nomic Committee I have seen very clearly Shultz. That is only a confirmation of lic policy. The Council of Social Advisers and where the Council of Economic Advisers what we learned many times before. He the annual social report of the President au­ falls short. The fact is they are mag­ testified before the Joint Economic Com­ thorized in title I of the act, would, we be­ nificent on the whole. We have had much mittee, so gracefully presided over by the lieve, help to fill this information vacuum. fine experience with them on the coun­ Senator from Wisconsin (Mr. PROXMlRE) . In other words, if Congress is serious about try'S economy but they tie into the coun­ employing its constitutional power over the He said: purse to reorder the Nation's priorities, I try's social responsibilities only insofar You have to cut on spending; you are not think it could begin at no better place than as it bears on the economy. It does not going to increase taxes or run up productivity with the passage of the Full Opportunity and always do that. that qUickly. National Goals and Priorities Act. (Emphasis We need quite clearly to have a similar We said: added.) focus on the crucial matter of our social What spending woUld we cut out? It is nothing short of a national scan­ needs. dal that Congress spends over $300 bil­ The same is true in the housing field He said: 110n in direct outlays, loans and tax sub­ where the matter of Government guar­ We do not have a mechanism to tell you sidies without taking a systematic, com­ antees becomes more important than but we think you ought to pass the appro­ priation figures at one time, give us a spend­ prehensive view at what it is doing. Ac­ utilization of Government money. The tions in this fiscal area affect not only same is true in the regulatory field where ing ceiling, and then the President will tell you hoW to apply that spending ceiling. the SUbstantive programs for which the regulation of construction of atomic outlays are being spent; they also affect plants or transmission of natural gas Then, I asked: the economy as a whole in terms of em­ becomes a critically important matter in Do you believe we shoUld have our own ployment, infiation, interest rates, and the overall planning of our Government 01l1ce of goals and priorities analysis? even our competitiveness in international for utilization of resources. trade. At the recent hearings of the Joint The Senator from Minnesota men­ He said: Absolutely. Economic Committee on how to improve tioned, for example, the oil import national productivity, almost every wit­ quotas, which bear on soil exploration, It was an interesting comment from ness agreed that some sort of office in and tax indulgences for oil exploration. the executive branch on this particular the Congress to analyze spending priori­ All these things are important to the matter. ties was an essential step in rationalIzing social future of the country and we are My colleagues have given much governmental spending decisions. Econ­ doing so much in the social field that I thought to this situation. My colleagues, omists writing for the Joint Economic consider the Council of Social Advisers the Senator from Ohio (Mr. TAFT) and Committee study on subsidies, which at­ important to the Councll of Economic the Senator from Colorado (Mr. DOMI­ tracted considerable attention from the Advisers. I hope the Senate goes along NICK), argue that this office is unneces­ press and the economic community, have with that view. sary but that the Comptroller's office regularly recommended that Congress The minority views of Senator TAFT could do the job. It seems to me this is strengthen its ability to plan and review and Senator DOMINICK, each Republican irrefutably answered by the Comptroller in this area. members of the Committee on Labor and himself. Last year the Comptroller him­ Mr. President, as we have become re­ Public Welfare, of which I am the rank­ self said, and this seems to me to be abso­ cently aware, this country faces a major ing minority member, describes this lutely incisive on this proposition: budget crisis brought about by the fact mechanism as "unnecessary." [T]he development of recommendations that we in Congress have been voting to They assert the administration's po­ concerning spending priorities [is] a func­ spend money at a rate faster than our sition that these functions are being tion for which the General Accounting 01l1ce ability to gather revenues at full employ­ carried out by the President's Domestic does not have primary responslbil1ty and one ment. No reasonable person could deny Council and the Office of Management which it should not seek. In short, the Gen­ that one of the chief contributing factors and Budget and that the Council pro­ eral Accounting is an "after the fact" effort. to this deplorable situation has been the posed in this blll "WOUld certainly over­ What I am saying in title IT of the bill lap and perhaps impede the mandate of absence of anybody in the Congress re­ the Domestic Council." is "before the fact" control, and the sponsible for informing the Congress But in fact they are not: The Domes­ Comptroller said he does not want it. about the hard facts of priorities plan­ tic Councll remains principally con­ The chairman of the National Urban ning. cerned with the operation of the pro­ Coalition, Sol M. Linowitz, testifying on Mr. President, title II would meet these grams of the various agencies in an ad­ July 13, 1971, before the Subcommittee needs by establishing an Office of Na­ ministrative sense, and cannot provide on Evaluation in support of S. 5, de­ tional Goals and Priorities Analysis the kind of independent judgment and scribed the need for title II very accu­ which would be responsible for submit­ overview, questioning basic assumptions ra.tely. He said: ting an annual report to the Congress- 25232 CONGRESSIONAL RECORD -SENATE July 25, 1972 parallel to the social report to be under­ prior planning as to how we could best because it is important that we have a taken by the council under title I-which have spent this $111 billion would have clear delineation of the Federal respon­ would include: An analysis of the social prevented the budget crisis from occur­ sibility and to know exactly which com­ report; an examination of resources ring. That is what the office and the mittee is responsible for these func­ available to the Nation and recommen­ council could have done for us. tions and how Congress is going to be dations concerning spending priorities. The Congress has the principal obli­ able to use this information. Additionally, the office would be au­ gation with respect to the power of the I am delighted to say that, with the thorized to provide further information, purse and it is time that we reasserted work of the distinguished Senator from data, or analysis relevant to an informed that power, while giving the Executive New York, who has been very concerned determination of national goals and its own vehicle, through pa...sage of this with our social priorities, and of the priorities. bill. Senator from Minnesota, we have worked I have worked up with the Senator Mr. President, as the principal joint something out that is acceptable and will from Wisconsin (Mr. PROXMIRE), chair­ sponsor, with Senator MONDALE of S. 5, give us the congressional coordination we man of the Joint Economic Commit­ I urge that the committee bill be adopted. must have. tee----- It is apparent that the American peo­ Mr. JAVITS. Mr. President, if the Sen­ Mr. MONDALE. Mr. President, will the ple-regardless of political persuasion­ ator will yield to me, I think the amend­ Senator yield at that point? The testi­ expect their Government to do better at ment is splendid. I think we have worked mony by the Senator from Illinois (Mr. establishing and reordering our national out an excellent solution to the problem. PERCY) was very important. priorities. It resolves the concern of the senator The PRESIDING OFFICER. The time Mr. PROXMIRE. Mr. President, will from Wisconsin (Mr. PROXMIRE) about of the Senator from Minnesota has the Senator yield so I could call up my the role of congressional oversight. It expired. amendment, which would enable us to resolves my concern that no committee Mr. JAVITS. Mr. President, will the take time? in the Congress can have the kind of Senate allow me to take 2 minutes, and, Mr. JAVITS. I yield for that purpose. staff and the kind of professional per­ if necessary, I will put in an amendment Mr. PROXMIRE. Mr. President, I call formance which an office like this needs so that he can take what time he needs? up my amendment, which is at the desk, if it is truly to serve us all effectively. Mr. TAFT. Mr. President, I yield 2 and ask to have it read by the clerk. Incidentally, this was the Senator from minutes to the Senator from New York. The PRESIDING OFFICER. The Wisconsin's way of working it out. I ac­ The PRESIDING OFFICER. The Sen­ amendment will be stated. cept it fully. I appreciate his putting ator is recognized for 2 minutes. The assistant legislative clerk read the himself out to the point of making it Mr. MONDALE. Mr. President, I do amendment, as follows: possible for him to support the bill, and not have the exact phrasing of the point On page 13, strike lines 17 through 20 and therefore have the bill have a broader made by the Senator from Dlinois (Mr. insert in lieu thereof the following: base of Senate support. PERCY), but he pointed out that Con­ "The Joint Economic Committee of the So, as far as I am concerned, if the gress has tragically denied itself the data, Congress shall review the operations of the manager of the bill is willing, I would the computer technology, the capability Office periodically, and hold hearings on the like very much to see us accept the to advise itself on complex and inter­ national goals and priorities report and on amendment. such other reports and duties of the Office related budgetary matters who could be as it deems adVisable. The Office shall, to the The PRESIDING OFFICER. Who met through the title II of the bill, which maximum extent consistent with the provi­ yields time? was offered by the Senator from New sions of this title, accord priority to requests Mr. PROXMIRE. Mr. President, I yield York. made by the Joint Economic Committee and whatever time may be required to the Mr. JAVITS. Exactly. furnish that committee such information as Senator from Minnesota. Mr. MONDALE. I do not know why it may request with respect to the operations The PRESIDING OFFICER. The Congress inflicts upon itself this serious of the Office," Chair will say that the Senator from limitation this tremendous disadvantage Mr. PROXMIRE. Mr. President, we Minnesota has 30 minutes. that will continue unless we authorize have worked carefUlly with the Senator Mr. MONDALE Mr. President, I yield something along the line the Senator from New York and the Senator from myself 2 minutes. suggests. Minnesota in developing this amend­ In my opinion,this is a good amend­ Mr. JAVITS. I am grateful to the ment. I have been concerned with the bill ment. It seems to reconcile the differ­ Senator. over the years. It was offereli last year, as ences that might have existed as be­ The Senator from. Illinois (Mr. PERCY) I recall, by the Senator from New York tween committees in the use of the work said. on March 13, 1970, in testifying: and the Senator from Minnesota, and at of this office, without giving absolute Each bill and appropriation is handled that time I was concerned with possible priority. In other words, all committees separately with no real attention given as to duplication of work now done by the now have the possibility for getting its how each piece of legislation fits into an Joint Economic Committee. assistance, but it makes it clear hat overall framework of needs and resources If one examines the bill, he finds, on some priority .will, where feasiblt, be available. page 11, for example, that it requires- given to the Joint Economic Committee. Other witnesses who testified were Mr. An analysis, In terms of national goals and Because this committee is now charged Zwick, former head of the Budget, Mr. priorities, of the programs in the annual with making recommendations in this Joseph Barr, former Secretary of the budget submitted by the President, the Eco­ area, I think it is a good amendment and Treasury, and as I noted, Mr. Sol Lino­ nomic Report of the President, and the Social I would like to accept it. witz, chairman of the Urban Coalition. Report of the President. Mr. DOMINICK. Mr. President, a Mr. President, let me conclude by Then it goes on and says: parliamentary inquiry. The PRESIDING OFFICER. Does the citing a situation in which both the An examination of resources available to coun~il and the office proposed under the Nation, the foreseeable costs and expect­ Senator yield to the Senator from Colo­ this bill would have been useful. Since ed benefits of existing and proposed Federal rado for a parliamentary inquiry? 1965, budget outlays on a unified basis programs. Mr. PROXMIRE. Mr. President, even though the Senator may oppose the have increased by $111 billion, approxi­ And so forth. mately one-third of which can be cllarac­ amendment, I am pleased to yield him terized as "Great Society" programs. As That is work that the Joint Economic time. a result, we are now in a budget crisis of Subcommittee on Priorities and Economy Mr. DOMINICK. Mr. President, a par­ major dimensions, wherein tax hikes or in Government tries to do. I am chair­ liamentary inquiry. In the event some­ cutting back on established programs man of that SUbcommittee, as well as one should oppose this amendment­ being chairman of the Joint Economic then who has control of the time? has to be seriously considered. Further­ Committee. more, many observers agree that the The PRESIDING OFFICER. Under the The reason I favor the bill is that it agreement previously entered into, the helter-skelter way in which these pro­ provides exactly the kind of office we need Chair will say to the Senator from Colo­ grams were enacted has vitiated their to give us the information we must have rado the time is evenly divided between effectiveness. The authors of the recent if we are going to do this in an orderly, the mover of the amendment (Mr. PROX­ Brookings study on national priorities informed, and effective way. MIRE) and the manager of the bill (Mr. have pointed out to us that some effective I believe this amendment is desirable, MONDALE) . July 25, 1972 CONGRESSIONAL RECORD-SENATE 25233 Mr. DOMINICK. If the Senator from their discretion. I want to say they have of the Senator from Wisconsin. I believe Minnesota is in favor of the amend­ a pleasant disposition. the Senator from New York is the rank­ ment, who gets the time? What I am trying to bring out about ing Republican member. The PRESIDING OFFICER. The Chair this amendment has not even been dis­ I do not blame them for wanting to get will say to the Senator from Colorado cussed. Let us take a look at the amend­ another adjunct to help them out in that in the unanimous-consent agree­ ment. We will see that under title II, their study, but if we are going to do ment there is no provision for delegation which is the Senator from New York's that for one committee, why should we of time. proposal originally, a commission is not do it for every committee? Why Mr. DOMINICK. I will say for the ben­ established under the control of Con­ should we just put one committee in the efit of my colleagues that this is part of gress, something called the Office of position that we are establishing a spe­ the problem of trying to run this body Goals and Priorities Analysis. cial office for it. I do not know at how under unanimous consent when we do Then you go over to page 13, section much expense this would entail. I have not look at the situation carefully. This 205, which the amendment is concerned forgotten at this point, but it is going to is the second time it has happened to me. with, and as written now it simply says be paid by the Secretary of the Senate, If it continues, I am going to have to that the Joint Committee on Economics as far as the cost is concerned, on vouch­ object to any unanimous-consent agree­ shall hold hearings on the national ers signed by the director or the acting ment from now on. goals. director. Mr. MONDALE. Mr. President, will The Senator from Wisconsin (Mr. As I say, I do not see how much is the the Senator yield? PROXMIRE) is striking that section, and estimated cost but it does not make much Mr. DOMINICK. I am glad to yield. his proposal says that the Joint Eco­ difference. What we are saying here is Mr. MONDALE. I think these unani­ nomic Committee shall review the opera­ that we would have another policeman mous-consent agreements assume good tions of the office periodically, thereby to go over and determine not only what faith and accommodation on the part of giving the jurisdiction over this commit­ is going on, but what the policies and Senators. Under these circumstances, I tee. This committee wlll hold hearings, priorities ought to be insofar as they are intend to yield most or all of my time which it is now doing, and to the max­ concerned, and then to report the whole to the Senator from Colorado if he op­ imum extent consistent with the provi­ situation back insofar as the Joint Eco­ poses the amendment proposed by the sions of this title, accord priorities to the nomic Committee is concerned. Senator from Wisconsin. That is the requests made by the Joint Economic What will happen to HEW? What will proper way to do that. Committee, and furnish that committee happen to the Committee on Labor and Mr. JAVITS. Mr. President, will the such information as it may request with Public Welfare, on which I serve? What Senator yield? respect to the operations of the office. is going to happen if they suddenly say Mr. PROXMIRE. I yield. So, to all intent and effect, Mr. Presi­ we should not have any help from Wel­ Mr. JAVITS. Mr. President, I really dent, what we are doing if this amend­ fare, it all ought to be from Defense, feel this point is somewhat unjustified. ment is adopted is establishing a special that we do not have enough money to I told the Senator from Ohio that I office for the benefit of one committee, do both? What will happen then? The would yield all the time to him, just in which I might add is not even a legisla­ other committees do not get any reports, the reguliuization of yielding it to the tive committee. It would be exactly the so I have got to go to the Joint Economic ranking minority member who was han­ same thing if we shOUld establish the Committee. dling the bill, and that I would yield that special Office of Small Business, and say I would say that this thing would be time in opposition to the bill. I know the that only to the Select Committee on a mistake. What we are doing is setting a Senator from Minnesota's intention on Small Business will that one report, and precedent from beginning to end, to say this amendment. it has to put them on a priority basis. that one committee, on its own motion, I would like to say, without arguing This reminds me--and I yield myself shall have the right to have absolute pri­ the point, the Senator is not caught short another 5 minutes, because I may not ority on a group which is being estab­ at all. It was fully contemplated that get through--of a newspaper man who lished presumably for the benefit of all those opposed would be given every min­ came into my office one day and said, Senators. ute in opposition, so whatever the Sen­ "Senator, do you know what is going on Mr. CURTIS. Mr. President, will the ator wishes, I am sure the Senator from in Government?" Senator yield for a question or two? Minnesota will yield all of his time in I said, "No. Do you?" Mr. DOMINICK. I am happy to yield. opposition to the amendment. I will do He said, "No." Mr. CURTIS. If this measure is en­ the same thing right now to the Senator I said, "I know what is going on in my acted, is it the Senator's opinion that from Ohio, and I told him I would. committee, or I think I do, usually." this would be pretty largely a staff opera- Mr. DOMINICK. Mr. President, a par­ I might ado that I did not know this tion? . liamentary inquiry, then. From whom do amendment was coming up, so apparent­ Mr. DOMINICK. I think it would be I get time? ly I do not even know that. almost totally a staff operation. Certain­ Mr. MONDALE. Mr. President, how He asked, "Do you think anyone in ly no Members of Congress are going to much time do I have remaining? Government knows what is going on in be on this committee. It is going to be a The PRESIDING OFFICER. The Sen­ Government?" staff member and assistant staff mem­ ator from Minnesota has 28 minutes re­ I said, "No." bers, I might say appointed by the ma­ maining on this amendment. He said, "Do you think the President jority leader of the Senate and the Mr. MONDALE. Mr. President, I yield does?" Speaker of the House of Representaitves. 28 minutes to the senator from Colo­ I said, "No, not if you are dealing with It does not even provide for minority rado. an agency-by-agency responsibility in representation in committee appoint­ The PRESIDING OFFICER. The Sen­ the day-to-day operations." I said. ments. ator from Colorado is recognized for 28 "There is no way; the Government is Mr. CURTIS. It seems to me that would minutes. simply too big to be able to do that." be the case. I know of no Senators who Mr. DOMINICK. The Senator from He said, "What you ought to do is would have available time to operate Colorado will take 5 minutes and reserve establish as a congressional office a whole the remainder. body of investigators who, on behalf of this themselves. I want to say the Senator from Min­ Congress, will then go down and stUdy I certainly would not want to down­ nesota and the Senator from New York what the agencies are doing, and give grade the very efficient staffs that appear have always been most cooperative in you reports back and forth whenever you in many places in Congress. We have this type of situation, but that does not want them. and thereby you can follow some devoted people. stop the basic difficulty. The basic diffi­ what is goir.g on in the agency." On the other hand, I am thoroughly culty with the unanimous-consent situ­ My comment was, "Who is going to convinced that when we get too many ation is that the time is given to the one police the policemen?" layers of staff, too much staff and too who is offering the amendment and the That is the same comment I would many committees operating with large balance of the time is given to the man­ make here. What are we doing? We are staffs, then we have to have more staff ager of the blll. If he happens. to be in creating another agency in Congress, for to read the staff reports. and pretty soon favor of the amendment, there is no time the specltlc benefit of the Joint Economic we have a government by staff that has for anyone whp is against it except at Committee under the able chairmanship never been elected by anyone. that 1s not CXVnI--159O-Part 19 :25234 CONGRESSIONAL RECORD·_··•SENATE July 25, 1972 answerable to the American people, not wholly in a partisan way, without any ·the Senator from KentUcky reflect many answerable to those who are greatly in­ real safeguard in this connection. of the viewpoints I have stated already. terested in social priorities and objec­ Mr. DOMINICK. The Senator is cor­ There are a great number of sponsors tives, and not answerable to our people rect, in my opinion. It is one of the more of this proposal, so I suspect that the as taxpayers; and I view everyone of important points I am glad he brought Senator from Kentucky and I will vote these·proposals to add to committees, up and emphasized. against it but it probably will go through. commissions, and so on, the work of I had never seen this amendment until The principal thing at the moment is which I know will be conducted by staffs, just this moment. I did not know it was this amendment. For the life of me, I as a most unliberal, backword, and reac­ going to be offered. It is probably my cannot understand why we should go tionary step in the whole area of free fault. It probably has been circulated. along v.1th this amendment, with all due government. It seems to me to be wrong to go for­ respect to the Senator from Wisconsin. I, for one, do not view this proposal as ward with a bill of this kind, establish­ It looks to me like a personal effort to fix something that will bring government ing a new office, with a director appointed up the Joint Economic Committee. closer to the people or more in line with by the majority only, and then have him The PRESIDING OFFICER. The time the objectives of the people of the coun­ reporting largely to the Joint Economic of the Senator has expired. try, and after all, they should be masters Committee-one committee. It does not Mr. JAVITS. Mr. President, will the of their own government. seem right. Senator yield me 5 minutes? Mr. DOMINICK. Mr. President, I share Mr. COOK. Mr. President, will the Sen­ Mr. PROXMIRE. I yield 5 minutes to the concern expressed by the Senator ator yield? the distinguished Senator from New from Nebraska. It is a part of what I am Mr. DOMINICK. I yield to the Sena­ York. talking about; it just does not seem to me tor from Kentucky. . Mr. JAVITS. Mr. President, I have no to make much sense to put up a new Mr. COOK. What amazes me about objection to how Senators feel about office in which the director is going to be this-and I am delighted that the Sena­ ·particular things, but I hope they will paid the same amount as the Comptroller tor from Minnesota has returned-is, indulge me and give me their close atten­ General of the United States, and then what do we have the committee system tion on the facts. A number of mistakes have him largely responsible to one com­ in Congress for now? Is this an oversight of fact have been uttered, quite inad­ mittee in Congress. committee for all the committees thatare vertently, which nonetheless are very Mr. TAFT. Mr. President, will the Sen­ presently in existence? If, in fact, it ·pertinent. atoryield? operates on the basis that the distin­ In the first place, this office is attrib­ Mr. DOMINICK. I am happy to yield guished Senator from Ohio has just laid utable to the fact that Congress, in rela­ to the Senator from Ohio. out, then it is as much a degree of tion to the executive, is very inade­ Mr. TAFI'. I would like to point out frustration for those of us who sit here quately staffed. The executive has, in the another thing in regard to this committee under the committee system now. Office of Management and Budget, an setup that seems to me very disturbing Here we are in the Committee on Com­ enormous number ·of employees, and in and troubling. merce, with 18 members, 10 from the the 'various Government departments. A year ago we enacted a Legislative majority side and eight from the Inlnor­ ,where they spend· hundreds of millions. Reform Act, attempting to reaffirm once ity side; and the staff of the Commerce What we are proposing is an'agency of more the questionable principle-I say Committee, in violation of the Reorgani­ Congress for exactly the same reason­ questionable de facto, because my own zation Act, has 58 members for the ma­ in the same way that we set up the experience with Congress indicates it is jority and nine members for the minor- Comptroller General to check back on questionable-that committee staffs ity. ' the actions which were taken under law. should be nonpartisan, in effect. I would Now we are saying, "Let us have a In addition, the executive department like to call attention to the provisions of great, big oversight committee that is itself-I cited Secretary Shultz this title II with regard to this question. going to be not only more overpowering morning-agrees that this is a highly There are no safeguards under the than that but complete." desirable activity on the part of Con­ Legislative Reorganization Act, as far as If, in fact, we hav{; a committee sys­ gress. The fact is, as Senator COOK I can see, that would apply as to whether tem that deals with all national goals properly says-and I perhaps am one of or not this shall be a partisan operation. and priorities in relation to where a re­ the most well-known victims of it-that It is true, and I recognize and am fully spective bill ought to go, how much more we are tremendously overworked. Pre­ aware, that section 202, subsection (0, staff and how much more committee cisely. Every committee has its own ju­ provides that persons shall be selected operation do we really need around here? risdiction in a very specialized way. We without regard to political affiliation, but We get our copy of our schedule in the simply have no time for overviewing the that does not detract from the fact that mormng. It shows that we are due at whole thing, not as to what was done, they are appointed, and appointed solely five committees or subcommittees, all at which is what the Comptroller does, but by the Speaker of the House of Repre­ 10 o'clock in the morning. That is a prospectively, as to what we ought to be sentatives and the majority leader of the remarkable thing to do, and it is a re­ doing. I gave the example of the admin­ senate, and that they are solely respon­ markable opportunity when one can istration saying, "Put on a ceiling and sible to the majority and may be re­ really be at all five at the same time. within that ceiling you will have to de­ moved at any time at the behest of the So we now are spread so thin, it is cide what are your priorities." That re­ majority. almost like protecting the majority side. lates to all committees, not just anyone So, in effect, there is absolutely no safe­ We do not want to spread them any of the committees of a Senator who oP­ guard whatsoever for representation on thinner, because we now find that with poses this amendment, or my committee. the part of the minority in the staff of respect to major pieces of legislation, the but every committee. this group that is to be set up. hearings are· conducted by one Member So the idea is to have a highly profes­ This goes farther, even, than the prob­ of the Senate because we cannot get sional agency which will give us guid­ lems of partisanship that sometimes exist anybody else there, becaw;e 17 subcom­ ance on that particular subject. That is with regard to allocations of committee mittees and three major committees are the whole purpose we are laying out to staffs, both in the House and the Sen­ all meeting at the same time. And here the Senate. It is very urgently needed, as ate. To me this is a fatal defect, expecting we go again. is clear from the demands upon us and to get out of such a group any really ob­ It is amazing to me that Congress the fact that we are so diversified. Sec­ jectiveconsideration of the problems today is so completely and thoroughly ond, does the agency stand up? Third, what is the role of the Joint Economic that they seek to attack in this regard. out of balance in its committee lineups as Committee. with respect to it? I have to concur strongly with the to be ludicrous. Then we come in with This agency has been patterned on the opposition of the Senator to title II and an operation of this magnitude. office of the Comptroller General, which also to the amendment. To me, it estab­ I can only say to the Senator that I has worked for years.·The Comptroller lishes a priority for a particular joint had the opportunity to vote against this and Assistant Comptroller, here called committee over and above the standing matter before, and I will have the oppor­ directors, would be appointed in a similar committees. Itis even more objectionable tunity to vote against it again. way as regards missions by party partic­ because of the fact that it can operate Mr. DOMINICK. I am happy to hear ipation as provided by this bill. July 25, 1972 CONGRESSIONAL RECORD-SENATE 25235 I should like to point out something the information from the General Ac­ Mr. BROCK. I would like to inquire of which was not mentioned by any of the counting Office? the author of the amendment in particu­ speakers: The office shall be under the Mr. JAVITS. Not a single one. lar-- control and supervision of the director. Mr. PROXMIRE. Is it not true that Mr. DOMINICK. Mr. President, I yield And how would the director be secured? any member of a congressional commit­ 3 minutes to the Senator from Tennessee He would be appointed jointly by the tee can rely on the GAO? Is it not true for questions. majority leader of the Senate and the that the GAO has been tremendously The PRESIDING OFFICER. The Sen­ Speaker of the House and confirmed by useful because it is uninhibited by any ator from Tennessee is recognized for 3 a majority vote of each House. I repeat; restraints placed on it by the Govern­ minutes. and confirmed by a majority vote of each ment Operations Committee? It is tre­ Mr. BROCK. Mr. President, the Sena­ House. mendously useful also for other commit­ tor from Wisconsin knows that I am a I ask my colleagues: What is the pre­ tees and for most Members of Congress. longtime advocate of this kind of ap­ rogative of a chairman of any committee Mr. JAVITS. I would answer that not proach. As a member of his committee, in the Senate? Does he not appoint the only with an unqualified "Yes," and the when I was in the other bodY, I strongly top people who serve the committee in Senator from Wisconsin is a prime ex­ urged that the Joint Economic Com­ the way of staff? ample of it. He is not a member of the mittee be given the opportunity to work Finally, it has been said-and I know Government Operations Committee but in the area of national priorities. The inadvertently-that the director can be I knoVl of no one who has used that Office Congress has been woefully inadequate fired any time the majority wants him more or to greater effect than has the in meeting its responsibilities to the to be fired. That is not completely true. Senator from Wisconsin. American people in the studying, analyz­ The bill esPecially says that the terms Mr. PROXMffiE. The point the Sen­ ing, and allocation of resources accord­ of the director and the assistant director ator from New York makes is a good ing to the national priorities that we subsequently appointed-that is, after one, that when we create an office like established. So I do not come to this January 1, 1973--shall expire on January this one, we have to have some relation­ debate as an unsympathetic person in 31 every 4 years thereafter. As does ship to some committee. We either give this particular matter. the Comptroller General, he has a stated it to the Joint Economic Committee or I do have a couple of questions, though. term, and so has his assistant. we give it to the Appropriations Com­ The way this legislation is drawn, it is Now, about the committee: We put mittee or to the Government Operations almost as a counterbalance or an offset these agencies under the jurisdiction of Committee. The Joint Economic Com­ to the Office of Management and some committee for oversight, and this mittee, with its weaknesses, not being a BUdget, almost a competitive or defen­ seemed a very logical one, because it fits legislative committee, has established sive device, creating our own office of into its work with the Joint Economic over the years an interest and some management and budget here. I there­ Committee. Let me give an example. expertise and some staff capability and fore wonder whether that is what we The Government Operations Commit­ some membership capability in the area really intend. tee, on which I have the honor to serve, of priorities. It has worked hard on that. For example, priorities are not estab­ is charged with the duty of supervision We have issued a number of reports on lished just downtown, they are also es­ over the Comptroller General's Office, it and held many hearings. I would hope tablished by every committee of Con­ and the Standing Rules of the Senate so that, under those circumstances, my good gress. Will this director evaluate the provide. They say, with respect to the friends in the Senate would recognize activities of the Committee on Educa­ Government OperationsCommittee: that this is a responsibility that we can tion and Labor to see whether they meet Such committee shall have the duty of discharge and would be happy to dis­ the standards of national priorities, or receiving and examining reports of the Comp­ charge and prevent what otherwise will it say that the bill being presented troller General of the United States and of would be a duplication. If this is given here to the Senate is consistent with submitting such recommendations to the to some other committee, then they have national priorities, or is the money ex­ Senate as it deems necessary or desirable in connection with the subject matter of such to establish a similar capability to what cessive, or is the program working or reports. the Joint Economic Committee now has. not working? Thus, this is the orderly, sensible, and I am very much interested in the That is a pretty impressive Office. It logical way to handle congressional over­ human audit but I do not see that we has been going on for a long time. I never sight with respect to that committee. gain anything by auditing it in exactly heard a Senator criticize the fact that I can say, with respect to the office this way. I would like to urge the audit­ the Committee on Government Opera­ and to the chairman of this committee, ing of Congress and am concerned as to tions had legislative oversight over the that I will certainly have no interest in whether this director is going to be Comptroller General. preventing any other committee from doing anything about the abuses of the The amendment would do nothing using the office being created. In fact, public priorities by this bodY and by its more than that with respect to the JOInt I would hope and urge Members of the committees. Economic Committee. There is no ex­ Senate and Members of the House and Mr. PROXMIRE. In response to the clusivity about it. It would serve the the committees to use the office as much question by the Senator from Tennessee, whole Congress, as does the Comptroller as they would like to. The more they let me say that, in the first place, the General, at the request of any Member use it, the more useful it will be. Senator knows that this is a bill which of Congress, except that legislative over­ Mr. JAVITS. I thoroughly agree with has two sections to it. The first sec­ sight would be vested in the one com­ the Senator from Wisconsin. This is a tion-- mittee which is uniquely adapted, be­ bipartisan committee, representative of The PRESIDING OFFICER (Mr. cause of its broad coverage, to give it leg­ both House and Senate and, hence, STAFFORD). The time of the Senator has islative oversight. uniquely adaptable as an instrument for expired. The PRESIDING OFFICER. The time precisely this legislative oversight. Mr. PROXMmE. Mr. President, I yield of the Senator has expired. Mr. PROXMIRE. I thank the Senator myself 2 minutes on my time. Mr. PROXMIRE. Mr. President, I yield very much. The PRESIDING OFFICER. The Sen­ myself 2 minutes to ask the Senator from Mr. JAVITS. So I join the Senator in ator from Wisconsin is recognized for 2 New York some questions. hoping that the Senate will approve this minutes. The Senator is a distinguished mem­ excellent amendment. Mr. PROXMmE. The first section, of ber of the Committee on Government Mr. BROCK. Mr. President, will the course, sets up the Council of Social Ad­ Operations, and he has pointed out that Senator yield for some questions? visers to the President, which is ap­ the relationship between the Committee Mr. PROXMffiE. How much time re­ pointed by the President and which on Government Operations and the GAO mains to our two sides, Mr. President? would work at the direction of the Presi­ is somewhat similar to the relationship The PRESIDING OFFICER. The Sen­ dent to establish the kind of priorities the Joint Economic Committee would ator from Wisconsin has 17 minutes re­ which would be desirable to him. have with this new office. maining and the Senator from Colorado The second section would establish an Does the Senator from New York know has 13 minutes remaining. office which would be the congressional of any instance in which any Member Mr. DOMINICK. I will be happy to office-on page 10, line 14-where it is has charged that the Committee on Gov­ yield 3 minutes to the Senator from Ten­ spelled out how the office is intended to ernment Operations has a monopoly·on nessee. operate: 25236 CONGRESSIONAL RECORD - SENATE July 25, 1972 Primary emphasis shall be given to sup­ Senator from New York (Mr. JAVITS) have control over them. They would give plying such analysis as will be most useful to tried to design this section to conform to us all of the papers they happen to the Congress in voting on the measures and with the way the GAO works. This is a think of concerning any particular Pres­ appropriations which come before it, and on providing the framework and overview of useful experience. We would like to pat­ ident's budget or economic or social priority considerations within which a mean­ tern it after that. report. ingfUl consideration of individual measures Mr. BROCK. But Congress is a parti­ I have always thought that if Senators can be undertaken. san ofiice and the GAO is not. They do had a reaction to a report of the Presi­ not have any members of a minority. dent, it would be perfectly proper. And if I think that the effort here-and it is The Members of the minority in Congress a Member of the House did, it would be a difiicult thing to do-is not to inter­ are woefully and inadequately staffed. perfectly proper. But to have a group vene in any way, shape, or form with There is a very great difficulty which of people on the outside submit some any committee. This is a staff ofiice, not Members of the minority have in try­ facts and analysis-and obviously a criti­ one made up of elected officials. The ef­ ing to get adequate information. This is cal analysis, because that is what it is fort will be to establish priorities to work what distresses us in the continuation of supposed to be--of any President from with the Appropriations Committee of this kind of enlargement of the staff role now on as to the budget or economic or the House and senate, and to work with without the voice of the minority in it. social reports and have that group paid the various other committees, as re­ Mr. PROXMIRE. As the Senator from by the Senate without having a right to quested, to try to respond to their re­ Minnesota has just pointed out, the Sen­ oversee or supervise or determine what is quests for information on how priorities ator from New York (Mr. JAVITS), who in the report, to begin with, goes way can be best coordinated among the vari­ is the author of this partiCUlar section, I beyond anything that I want to do. ous committees of the House and senate. am sure can respond more helpfully It is my certain hope that we will not It is difiicult. But this is going to be an than I or the Senator from Minnesota or agree to this type of approach. ofiice that will have to proceed and learn any other Member of the majority. I I understand the desire of the senator as it goes. The Congress will have to think it would be best to wait until the from Wisconsin to have some more help learn how to use it as it goes along. We Senator from New York returns. on the very complicated problems of the should make a beginning, because unless Mr. BROCK. Mr. President, I would Joint Economic Committee studies. How­ we coordinate our efforts, we will be in be delighted to do so. ever, it seems to me that if this is to be great difiiculty in the future. The PRESIDING OFFICER. Who done, it ought to be done in a proper way, Mr. BROCK. I do not disagree at all. I yields time? by having a legislative request for ap­ very much agree. What worries me is Mr. DOMINICK. Mr. President, how propriations to have enough people for that by creating this at the outset we much time do we have remaining? the Joint Economic Committee, rather may not reach the ultimate objective we The PRESIDING OFFICER. The Sen­ than to set up a separate agency which are seeking to achieve. I am wondering ator from Colorado has 10 minutes re­ is almost totally outside the scope of the why the senator from Wisconsin would maining, and the Senator from Wis­ ordinary legislative procedure. not suggest that the Assistant Admin­ consin has 12 minutes remaining. Mr. President, I reserve the remainder istrator be appointed by the minority. Mr. DOMINICK. Mr. President, I yield of my time. Mr. PROXMffiE. May I yield to the myself an additional 5 minutes to point The PRESIDING OFFICER. Who Senator from Minnesota (Mr. MONDALE) out what I conceive as being some of the yields time? who is the author of the bill on that. I other problems. I call the attention of Mr. MONDALE. Mr. President, how am concerned with my own amendment, the Senator from Minnesota to some of much time remains on this side? which would not bear on that. the problems with this particular bill, The PRESIDING OFFICER. The Sen­ I yield 2 minutes to the Senator from without regard to the particular amend­ ator from Colorado has 5 minutes re­ Minnesota. The question as I understand ment we are considering. maining. The Senator from Wisconsin it, asked by the Senator from Tennessee For example, this ofiice consists of a has 12 minutes remaining. (Mr. BROCK), is why the No.2 man in director and an assistant director with Mr. MONDALE. Mr. President, I sug­ the office should not be appointed by the no limitation on the number of staff gest the absence of a quorum and I ask minority in the House and Senate rather officers or staff members he might add. unanimous consent that the time not be than by the majority? He is required to submit to Congress on taken from either side. Mr. MONDALE. Mr. President, I wish March 1 a report, which I presume is Mr. PASTORE. Mr. President, would the Senator from Tennessee would with­ their report, after some stUdy and input the Senator withhold that request? hold that question, because it deals with of Members and agencies and people Mr. MONDALE. I would be glad to do the provisions offered by the Senator around the country, on national goals so. from New York. I know there is no inten­ and priorities. Mr. PROXMIRE. Mr. President, I yield tion here to be partisan. I refer the Sen­ However, this also includes an anal­ to the Senator from Rhode Island for a ator to page 10, subsection (f), in which ysis in terms of national goals and pri­ question. we say: orities of all programs submitted by the The PRESIDING OFFICER. The Sen­ (f) The prOfessional staff members, in­ President, an analysis of the economic ator from Rhode Island is recognized. cluding the Director and Assistant Director, report of the President and an analysis Mr. PASTORE. Mr. President, one shall be persons selected without regard to of the social report of the President. thing that has bothered the Senator political affiliations who, as a result Of train­ So what we are setting up here is a ing. experience. and attainments, are excep­ from Rhode Island for a long time-and tionally qualified to analyze and Interpret second-guessing organization. The Pres­ I have been around here now for 22 public policies and programs. ident comes up with a budget which is, years-is this lack of liaison between the already "yea" thick-and I am talking legislative committee and the appropria­ So, with respect to that specific ques­ about 2 feet or more in terms of paper­ tion committee. tion. I wish the Senator from Tennessee work-and this group processes it in 15 I think if we took everything author­ would withhold it until the Senator from days. The President does not have to ized in the course of a year and funded New York (Mr. JAVITS) is able to return submit his social report until Febru­ it to the last dollar, we would have to to the Chamber. ary 15. It is a second guess on the social double or even treble the taxes to be Mr. TAFT. Mr. President, may I point report and economic report and the an­ paid. There is no question about that out further, with reference to this, that nual budget report in terms of the na­ in my mind. even if the assistant director were ap­ tional goals and priorities. It strikes me that there ought to be pointed by the minority, he would still be I ask the Senator whether this is what some coordination between the legisla­ subject to removal by the majority unless we want to send over to other outside tive process and the funding process. a further change remained to make the agencies. Do we really want to say that I realize that any time a legislative turnover of his ofiice subject to a vote of these recommendations of the President, committee meets, it considers in its ovm the minority. I mean, there are all kinds which are submitted to Congress in 15 way the needs-and each committee, of of questions in here, with regard to the days, are going to get a whiskbroom course, acts independently of other com­ Reorganization Act particularly, which analysis by a group of people appointed mittees-thus we find that there is a lack are simply unanswerable by the ap­ by the majority party, with any number of coordination among all committees proach the pending bill is taking. of staff members over whom we have and a failure to give some thought to Mr. PROXMIRE. Let me say that the little or no control. The Director would what we jointly do in the course of a July 25, 197.CJ CONGRESSIONAL RECORD - SENATE 25237 year. Then we get on the floor of the but with the social report being sent to Mr. PASTORE. I thank the Senator. Senate and we begin to talk about hous­ the Congress for our consideration. Mr. DOMINICK. Mr. President, I yield ing for this and urging housing for that In title II, there is created an Office myself 3 minutes. program. They are all very desirable and of Goals andPriorities in Congress, which I listened carefully to the questions of very appealing. We then vote. Then we I would like the Senator from New York the Senator from Rhode Island. I would pick up the newspaper and are told by to describe since this is his measure and like to comment on them. Mr. Shultz or somebody else that what one for which he has fought for so long. Keep in mind that this proposal under we have to do is to stop spending so Mr. PASTORE. My categorical ques­ title II provides for a Director and As­ much money. tion is this: What relation does this have sistant Director, both appointed by the We have a budget. It shapes up to to the bUdget request or the request made majority leader and the Speaker of the $250 billion annually. So we appropriate by the President of the United States? House. There would be no minority in­ $250 billion each year. And that is con­ Would we encl up with a conflict? put, regardless of who the minority might. tained in 12 or 13 different bills. Each Mr. JAVITS. The Office simply advises be. It has no limit on staff members. subcommittee has its own individual re­ Congress and all committees thereof of That group is paid at the level of the sponsibility. The several amounts are the three things set forth. I would like to Comptroller General and the Assistant seldom added up to see where we are ask the Senator to read them. I am only Comptroller General, and all expenses of until the end of the year. relating to the Senator the provisions operation are paid by voucher. There is Then we also get the supplementals. of the bill which begin on page 11. The no appropriation process at all. The flrst thing we know, we end up with key functions are as follows: So at least theoretically, if it is not an a deficit of about $40 billion or $50 bil­ (1) an analysis, In terms of national goals actual danger, this thing, this body we lion at the close of the year. Sometimes and priorities. of the programs In the annual are creating could use up practically all it is because the income is underesti­ bUdget submltted by the President, the Eco­ the money there is in the Treasury and mated. Many times it is because we ap­ nomlc Report of the President, and the Social we have no limit on it. There is nothing Report Of the President; propriate more than was estimated. (2) an examination of resources available about "such sums as may be necessary." The question I would like to ask is to the Na.tlon, the foreseea.ble costs and ex­ Mr. JAVITS. Mr. President, will the whether the function of this committee pected benefits of existing and proposed Fed­ Senator yield? is advisory. eral programs, and the resources and cost Im­ Mr. DOMINICK. I yield. Mr. MONDALE. Mr. President, there pllcatlons of alternative sets of national Mr. JAVITS. The language on page 13, are two titles. The first title creates a priorities; and line 23, states: Council of Social Advisers which is lo­ (3) recommendations concerning spending All expenses and salaries of the office shall cated in the President's office. Its status priorities among Federal programs and be paid by the Secretary of the Senate from courses of action, including the identification funds appropriated for the office. would be almost identical with the Coun­ of those programs and courses of action cil of Economic Advisers. This Council which shouid be given greatest priority and Mr. DOMINICK. I am corrected. I is to be composed of top social scientists those which could more properly be deferred. apologize. I did not see that. I just saw who would advise the President on social problems in the same way that the Coun­ ~n short, it is the overview or whole re­ the voucher reference and that sent me cil of Economic Advisers advises the latlOnship between the executive branch through the wall. President on economic programs and pol­ and Congress. For example, I do not know Mr. JAVITS. If the Senator will allow icies. whether the Senator was here when I me, I stand corrected on how the Comp­ Mr. PASTORE. Mr. President, before said that Secretary of the Treasury troller General is appointed. Our pro­ the Senator goes to title II, there again, Geor~e Shultz appeared before us this vision is different from the Comptroller their function is only advisory. The Pres­ morrung and said, "You should set in General. What I had in mind was the ident can take it or leave it. Congress a spending ceiling," He suggest­ analogy, and the President is a party man Mr. MONDALE. Mr. President, that is ed $250 billion. and appoints him. Here it is the Speaker correct. They also have another function. !.hen, he said that in that $250 billion and the majority leader. They will help the President prepare an ce~l~ng yoU ought to determine your pri­ The analogy is there, but specifically annual social report which comes to Con­ ontles, and "We will tell YOU what we the President rather than these congres­ gress, and we can consider it in evalu­ think the priorities shOuld be," sional people appoint the Comptroller ating the efficacy of social programs. I said, "Is not Congress entitled to in General. My thought was that this was Mr. PASTORE. Mr. President, I ask some way take an overall view and say really our agency and we would really the Senator this question: Whom do we what it thinks should be done?" I said have our hands on it. mean by "we?" "We have no machinery for that pur~ Mr. DOMINICK. I thank the Senator Mr. MONDALE. Mr. President, the re­ pose. Would yOU agree we should have?" for making that correction. He is cor­ port goes to every appropriate commit­ He said he thought we should. . rect and I apologize to him, but it did tee. The report would go to the Commit­ Mr. PASTORE. I think the Senator has concern me. There is no limit on the tee on Labor and Public Welfare and to answered my question. We would know staff. I believe I am correct on that. any other committee that would be in­ from the beginning what the priorities Mr. JAVITS. Again, it will be the ap­ terested in the report of the Council of ~re within the gage of that money, which propriation process and sometimes my Social Advisers. IS something we do not know now. fliends sit on it and keep a very close Mr. PASTORE. So we would have an Mr. JAVITS. The Senator is correct. eye on it. idea at the very beginning not only of The President's agency will tell us what Mr. DOMINICK. In answer to the what the priorities should be, but also it thinks. Secretary Shultz testified that other question with respect to pages 10 what the priorities might cost. Is that w.e .have to spend one-third of the $250 and 11 of the bill, the office is required correct? billIon for defense. That is their view to submit by March 1 of each year Mr. MONDALE. No. The Council of but what will be our view? ' a national goals and priorities report Social Advisers would not deal princi­ But then they come along and say which shall include an analysis of the pally with costs or priorities. That would "We have no room for any new progran{ program. The social report of the Presi­ be title II of the bill. The Council of in the next year." Why? They assume dent does not have to be SUbmitted. It Social Advisers would seek to analyze the bUdget is so tight there is no money could be but it does not have to be, by the various social programs to find out for it. That does not mean we have to February 15, so this group has to take what is working in education, what is do it that way. in an analysis of the whole budget, the working in welfare, what is working in But none of us here have the overall economic report, and the social report mental health, and how we are doing in picture. This would porvide overall in­ and give it to us. There is obviously go­ welfare reform. It would try to analyze formation for the Congress to proceed ing to be a conflict there. This is one of existing programs and make recommen­ intelligently. The Executive has us out­ the questions brought up. I guess this is dations to the President for other pro­ smarted every time. They have the facts, why it was created, to give us a view grams. In the social report, it would help the !lgures, and the expertise; and we separate and apart from the other body. Congress determine what things we would simply cannot match it. My question is: Who or how is that have to do to help improve the conditions This is some effort to get abreast in going to happen? of human beings in this country. terms of goals and priorities between The PRESIDING OFFICER. The Sen­ It is purely aqvisory to the President, Congress and the Executive. ator's 3 minutes have expired. 25238 CONGRESSIONAL RECORD -. SENA.~ July 25, 1972 Mr. DOMINICK. Mr. President. I yield what they are in business for except as I think, however, inlthe very nature myself 1 additional minute. an item in evaluating what ought to be of the poUtical structure we have, there The PRESIDING OFFICER. The Sen­ the priorities. is a nature of partisanship that will get ator is recognized for 1 additional min­ Mr. PASTORE. Does not the Senator into this operation that is dangerous. ute. think it would be a good idea if they were I have great respect for the present Mr. DOMINICK. It is my understand­ given the authority to follow through? chairman of the Banking Committee of ing that the persons who were supposed The trouble here is that we are told by the House of Representatives as an able to analyze this and deal with this are the administration. whether it be a legislator. I served with him several not from an outside agency but Mem­ Democratic or Republican administra­ years, and the Senator from Tennessee bers of the House and Senate itself. This tion, that we need a certain kind of pro­ did as well. I point out that under the is the problem I see in that section of gram. It sounds very good and beautiful. Legislative Reorganization Act under the bill. Then we appropriate money for it. How­ which the staff was supposed to be non­ The PRESIDING OFFICER. Who ever, we do not know what happens to the partisan, there was a division of 44 to 3. yields time? money, whether the money has been We are talking about the kind of situa­ Mr. PROXMIRE. I yield 1 additional wasted or wisely spent or used in a proper tion that is possible· without any safe­ minute. way. I wonder if there should not be a guards being put into this bill. I feel Mr. JAVITS. It would be a question of follow through, because we do not have we have a major issue here before us. how to get the earliest date to be of use a staff at the present time to follow The Senator from Rhode Island very to Congress in the appropriation process through, once we have made an appro­ ably asked a question, and I thought and the authorization process. consist­ priation, to find out just how wisely that raised the point, that in effect this com­ ent with amassing the information and money has been spent. mittee w1lI make a recommendation as doing the job. March 1 is my best extrap­ The PRESIDING OFFICER. All time to the expenditures or nature of the ex­ olation. If the Senator felt that was on the amendment has expired. penditures in contravention of the very difficult for him I would be willing Mr. TAFT. Mr. President, I have a sub­ budget of the President, in all probabil­ to adjust it. It is just a matter of pick­ stitute amendment, which I offer at this ity. Whether it will be a partisan one or ing some date early enough to be useful time. not, I do not know, but I take it that and late enough to capture such infor­ The PRESIDING OFFICER. The clerk where we would have a partisanship mation as may be necessary and desir­ will read the amendment. setup, in the appointment and profes­ able. The legislative clerk read the amend­ sional staff of a committee. the proposal Mr. DOMINICK. I yield myself 1 addi­ ment. in the nature of a substitute. as under title n involved here is very seri­ tional minute to ask a question of the follows: ous. I think it could paralyze the legis­ Senatorfrom New York. On page 13, Une 17, strike all through line lative process, and we could have the The PRESIDING OFFICER. The Sen­ 20 and insert in lieu thereof the following: Appropriations Committee, which hap­ ator from Colorado is recognized. SEC. 205. The Appropriate Committees of pily has tried to get away from partisan Mr. DOMINICK. Is it entirely proba­ Congress shall review the operations of the considerations in its staff makeup in its Office periodically and hold hearings on the present tendencies, going in that direc­ ble that any bill proposed by any Sena­ national goals and priorities report and on tor or Member of the House by virtue of tion. It could turn in the direction of such other reports and duties of the Ofllce partisanship again because they would this legislation would be subject to the as they deem advisable. The Ofllce shall, to analysis of this group to determine the maximum extent consistent with the have the right to refer to the recommen­ whether or not they are in favor of it? prOVisions of this title, accord priority to re­ dations made When, under circumstances Mr. JAVITS. Not at all. That is a mat­ quests made by Committees of Congress and as we presently have in the Senate, a ter for the committee and the executive furnish those Committees such informa.tlon majority of one party in the Senate and as they may request With respect to the op­ the House of Representatives and the department. All this group would do erations of the Ofllce. would be to give Congress the overall Presidency in the hands of the other view on what should be the priorities. The PRESIDING OFFICER. The Chair party, automatically we would have a This office will not act in a volunteer will inform the Senator from Ohio that, built-in partisan political structure. way. under the unanimous-consent agree­ In any event, to give priority to one Mr. PASTORE. Mr. President, will the ment, there are 30 minutes on this committee of Congress, that is not even amendment, to be equally divided be­ a legislative committee, that the Prox­ Senator yield for a question? mire amendment would give to no other Mr. PROXMffiE. Mr. President, I tween the mover of the amendment (Mr. TAFT) and the manager of the bllI (Mr. committee is. in my opinion, not wise. yield 2 minutes to the Senator from Mr. PROXMffiE. Mr. President, will Rhode Island. MONDALE). the Senator yield? The PRESIDING OFFICER. The Mr. TAFT. I thank the Chair. Senator has 2 minutes. Mr. President, the purpose of this Mr. TAFT. I yield. Mr. PASTORE. Would it be within amendment. very frankly, is to remove Mr. PROXMIRE. I think the Senator the function of this agency or estab­ the priority that the Proxmire amend­ from Ohio raises a good point. It was ment. whatever you want to call ment would establish for the Joint Eco­ not the intention of the Senator from it--- nomic Committee. I believe the point has Wisconsin to provide that a committee been pretty well covered here already of which he is chairman should be given Mr. JAVITS. Office. priority. I think the precedent we have Mr. PASTORE. OtIice? that such a priority should not exist; Mr. JAVITS. We call it an office. that all committees of Congress. if we to work with is with respect to the GAO. Mr. PASTORE. Would it be within its set up this instrumentality, should have Certainly the committee having respon­ jurisdiction in a training program, for an equal call upon the services of such sibility in a particular field should have a group. a free and open call on that service. instance, to put people to work to follow It would be perfectly acceptable to it through to see if the money was being I happen to be opposed to title n in any event, but I think if we move in this the Senator from Wisconsin to take out Wisely spent? the express priority for the Joint Eco­ Mr. JAVITS. That is the jurisdiction of direction it should be with a degree of the Comptroller General. but when it safeguards. nomic Committee, but leave in the fact It also goes back to something I talked that the Joint Economic Committee is comes to evaluating a program for next the committee that will hold oversight year or the next 5 years, they could take about a few minutes ago. If we want to the information which was developed as get down to cases, I am not hesitant to hearings on the otIice. Otherwise we will to how it works in their calculations in discuss a particular situation which have 16 committees in the Senate, and I recommending to Congress what ought would arise. It is true that the Senator do not know how many in the House, to be the priorities. For example, sup­ from ·Wisconsin is chairman of the Joint alI of which have some kind of oversight, pose they said, "It now appears it is going Economic Committee, and I have con­ but none of which will have a focus. The to take 2 years before you can really siderable respect for his fairness. I have Economic Committee is a joint committee crank it up to use the kind of money worked with him on the Banking, Hous­ with both House and Senate Members. you asked for. In the meantime, we have ing, and Urban Affairs and other Com­ It can be the logical focus. another priority which could intervene." mittees and have known him for a long Mr. TAFT. My question is, Under the That would be the proper function. That time, and I do not believe he would be jurisdictional rules we have in the Sen­ is their evaluation. The post-audit is not unfair in this situation. ate and the House. whether it would be July 25, 1972 CONGRESSIONAL RECORD - SENATE 25239 appropriate in any event to give prior-· there is an amendment to it pending. understand it, though I have not gone ities to one committee for hearings in Can I simply ask unanimous consent to to the desk to read it, that is exactly this field, the Joint Economic Commit­ withdraw my amendment? what we now have in the bill, except tee. It seems to me the other committees. Mr. TAFT. Mr. President. a parlia­ that the Assistant Director would then the Rules Committees, and possibly other mentary inquiry. be appointed by the minority leaders of organizational committees, as. well. as . The PRESIDING OFFICER. Does the the House of Representatives and the other committees, have authority under Senator. ask unanimous consent that he Senate, and similarly confirmed by a the rules of the respective bodies and be permitted to withdraw his amend­ majority vote of each House. have priority over certain jurisdiction. ment? Mr. BROCK. The Senator is correct. Mr. PROXMIRE. Of course, but the Mr. PROXMIRE. Yes. I ask unani­ Mr. JAVITS. I think that is an ex­ Joint Economic Committee holds hear­ mous consent that I may be permitted cellent amendment. We have discussed ings on the economic repOl::t. becaUse we to· withdraw my pending amendment. it, and as far as I am concerned, subject are the committee which is designated The PRESIDING OFFICER. Is there to one minute to look at it to be sure it and responsible to· do .that work. I sup­ objection? strikes the right thing, it is entirely sat­ pose the Joint Economic Committee Mr. TAFT. Mr. President. a parlia­ isfactory to me. might have an implied priority as the mentary inquiry. Mr. BROCK. Mr. President, who has one committee.. which has hearings on The PRESIDING OFFICER. The the time? the economic report, but this seems to Senator will state it. The PRESIDING OFFICER. The Sen­ be a cleaner, crisper. and more orderly Mr. TAFT. Reserving the right to ob­ ator from Minnesota has 15 minutes. way-to give it to one committee. Per­ ject, would my amendment remain pend­ Mr. MONDALE. Mr. President, I yield haps for this new office it ought to be ing under those circumstances. or would myself 5 minutes. to the Appropriations Committee. or it die, if the unanimous-consent request While the Senator from New York is some other committee. But the Econom­ were granted? examining the amendment, let me say ic Committee is a joint committee that The PRESIDING OFFICER. If the that I think this would strengthen the already has priorities experience. Going Senator from Wisconsin withdraws his bill. I do not think that this office can back to the bill's original language would amendment, the amendment of the Sen­ function unless it is bipartisan. or non­ be a compromise that would be accept­ ator from Ohio would go with it, but the partisan. If it acts in the role of advo­ able to me so that we would delete pri­ Senator from Ohio could then offer his cate, its function is completely de­ ority reference to the committee. amendment in his own right. stroyed. To function properly, it must Mr. TAFT. I think we have already Mr. PROXMIRE. May I say to the be established under the leadership of done that. The. language of the sub­ Senator from Ohio, the reason I would highly professional, highly skilled per­ stitute starts out with the words. "ap­ withdraw my amendment is with the sons, who can give it the same kind of propriate committee of Congress." The understanding with the Senator from leadership and the same sort of distinc­ appropriate committee would determine Ohio that he would withdraw his. He tion as the General Accounting Office. it. within the appropriate rules of Con­ said there would not be any substantial That is the quality and caliber of lead­ gress. To the extent that the Joint Eco­ difference. anyway, and would accept ership we would hope would result in the nomic Committee has authority to do it that. effective functioning of the office, but and has jUrisdiction over particular mat­ Mr. TAFT. Mr. President, I am not try­ also in receiving the bipartisan respect ters. it would continue to have jurisdic­ ing to play games in this situation. I it musthave. tion. Other committees would continue to understand that my amendment would Our objective here is to equip Con­ have jurisdiction they presently have to fail with the unanimous-consent request gress, on a bipartisan basis, with the kind review the operations of this committee being granted. of skills and talents in analysis, statistics, to that extent. I am not saying what The PRESIDING OFFICER. The Chair and computer technology that I think we committee necessarily. under the rul­ is advised by the Parliamentarian that need to be able to meet the enormous ing the Parliamentarian would make, the Senator from Wisconsin has a right distortions of the executive branch. no would have jurisdiction over this par­ to withdraw his amendment; that if he matter what party is in control. I have ticular committee setup. Perhaps it would does so the amendment of the Senator been involved in many legislative be the Joint Economic Committee. I do from Ohio is withdrawn with it. but the struggles here. and where I have been not think so. Senator from Ohio then has the right on the side of the Executive-and this has But I think the other committees of to offer his amendment as a separate been true under both administrations Congress certainly should not be brush­ piece of legislation. since I came to Washington-I get all ed aside by this amendment. insofar as Mr. TAFT. I will say I have no inten­ the computer printouts. data, and knowl­ the concern for their overview of the tion of doing so, for the reasons just edge I could possibly want. But. operation of this particular office is con­ stated. I withdraw the objection. strangely. when one finds himself in op­ cerned. The PRESIDING OFFICER. Then the position to the Executive, under either Mr. PROXMIRE. Mr. President, let me amendment of the Senator from Wis­ pOlitical party, suddenly the computers ask the Senator, suppose I withdraw my consin is withdrawn. go dead. they run backwards, the data amendment, would the Senator from Mr. BROCK. Mr. President, I call up they give you are somehow incomplete. Ohio then withdraw his amendment, and an amendment which I have at the desk Why Congress should voluntarily deny go back to the original language in the and ask for its immediate consideration. itself the information and data it needs bill? Let me read the original language. The PRESIDING OFFICER. The to make intelligent choices under these It is only a few words. It says: amendment will be stated. circumstances. I do not know. The Joint Economic Committee of the Con­ The legislative clerk read as follows: I think the amendment offered by the gress shall hold hearings on the national On page 8, strike line 24 and all that fol­ senator from Tennessee will strengthen goals and priorities report and on such lows through "House" on page 9 line 3, this office. other reports and duties of the Office as it and insert in lieu thereof: "who shall be The PRESIDING OFFICER. Who deems advisable. appointed Jointly by the Majority Leader yields time? There is no priority expressed. Just of the Senate and the Speaker of the House Mr. BROCK. Mr. President, I yield of Representatives and confirmed by a ma­ that. jority vote of each House, and an Assistant myself such time as I may require. Mr. TAFT. I would say to the Senator Director of Goals and Priorities Analysis I would say very sincerely that I am from Wisconsin, in all honesty, I believe (hereinafter referred to as the 'Assistant deeply grateful for the sUPpOrt of the that would leave the situation in exactly Director') who shall be appointed jointly Senator from New York and the Senator the same status as if the amendment by the Minority Leader of the senate and from Minnesota. We share a common were passed. so I do not believe it really the MinorIty Leader of the House of Rep­ objective in seeking to strengthen matters. If the Senator is willing to with­ resentatIves and confirmed by a majority the legislative branch, and not only draw his amendment, I have no objec­ vote of each House." strengthen it in a bipartisan sense. tion. Mr. JAVITS. Mr. President, will the No partisanship is intended in this Mr. PROXMIRE. That is fine. Mr. Senatoryield? measure, and I think this amendment President, I do not know what the parlia­ Mr. BROCK. I yield to the senator will assure that that situation will ob­ mentary situation is. I would like to from New York. tain, and will maintain itself. withdraw myI amendment, although Mr. JAVITS. Mr. President, as I I am somewhat amused by the state- 25240 CONGRESSIONAL RECORD - SENATE July 25, 1972 ment of the senator from Minnesota, fice, and I believe they are correct in tak­ actment of a bill such !s S. 5. I believe because I have felt the inadequacy of ing that position. Two years ago, the the discussions we already have had on computer printouts and such things for President, through executive reorgani­ the floor this afternoon have indicated my 10 years in Congress, and I am glad zation, established the Domestic Council this very patently. that it is recognized by others. to assist him in the coordination and Title II of the bill establishes within Mr. MONDALE. Yes. Sometimes I overview of domestic policy. Department, Congress an Oflice of Goals and Priorities think we have a new axiom, that he who secretaries and heads of agencies in the Analysis. This new Office would be re­ controls the computers wins the debate. domestic areas are members of the Do­ quired to submit to the Congress an an­ Mr. JAVITS. Mr. President, I have ex­ mestic Council-giving it the advantage nual report setting forth goals and priori­ amined the amendment and I find it sat­ of meaningful inputs and suggestions ties. This objective is commendable. I isfactory. from these very able people. Certainly, question, however, whether the addition Mr. BROCK. I yield back the remain­ the President is in the best position to de­ of an office and staff, completely sepa­ der of my time. termine whether he needs an additional rated from all legislative and appropria­ Mr. MONDALE. I yield back the re­ Council to assist him in establishing so­ tions committees, would or could accom­ mainder of my time. cial goals and priorities. The Council plish this purpose. In my judgment such The PRESIDING OFFICER (Mr. which is proposed in this bill would an isolated office would be a tremendous STAFFORD). All remaining time having overlap and perhaps impede the mandate waste of time, money, and staff. The been yielded back, the question is on of the Domestic Council. distinguished Senator from Wisconsin, agreeing to the amendment of the sena­ It seems to me, and I think my col­ Mr. PROXMIRE, who testified on S. 5 in tor from Tennessee. leagues will agree, that before concern­ July 1971, in my opinion, was justified The amendment was agreed to. ing ourselves with the creation of ad­ in opposing this measure "because it un­ The PRESIDING OFFICER. The bill is ditional councils and other administra­ dertakes to establish an Office of Goals open to further amendment. Who yields tive structures, this Congress would be and Priorities on a basis that would sepa­ time? better advised to spend its time and en­ rate it completely from the general eco­ Mr. TAFT. Mr. President, I yield my­ ergy on the enactment of the many nomic analysis and formulation of eco­ self 8 minutes on the bill. needed domestic reforms already pro­ nomic policy in the Congress." Mr. ROBERT C. BYRD. Mr. President, posed by the President and others. These For these reasons, I urge my colleagues will the distinguished Senator yield for a include welfare reform, manpower train­ to join with me in opposing the passage question? ing, the reform of our system of health of this unnecessary and ill-structured Mr. TAFT. I yield. care, revenue sharing, and the reorgani­ measure. Mr. ROBERT C. BYRD. May I ask the zation of the Federal Government. Mr. President, I reserve the remainder distinguished Senator from Tennessee or Recognizing the need for more research of my time. the distinguished manager of the bill in the development of reliable social in­ The PRESIDING OFFICER (Mr. whether it is the intention of either to dicators-there is a great need for this, COOK). Who yields time? ask for the yeas and nays on the bill? If and if we need give attention to this field Mr. MONDALE. I yield myself 2 it is, there are enough Senators now pres­ by additional legislation, I think our at­ minutes. ent to show a sufficient second. tention ought to be directed in the area The PRESIDING OFFICER. The Sen­ Mr. TAFT. Mr. President, I ask for the of research and development of reliable ator has no time remaining. yeas and nays on the bill. social indicators-the Office of Manage­ Mr. TAFT. I yield 5 minutes to the The yeas and nays were ordered. ment and Budget has been working in Senator. Mr. TAFT. Mr. President, I would say this area for some time, compiling an Mr. MONDALE. I inquire from the at this time to the distinguished acting extensive publication on social indicators. Senator from Ohio whether he plans to majority leader that it is possible that at The Office of Statistical Policy in OMB offer an amendment. the conclusion of my remarks I shall offer has indicated to me that it hopes to pub­ Mr. TAFT. I do plan to offer an another amendment, on which I mayor lish its work on social indicators early amendment very shortly. My amend­ may not ask for the yeas and nays. in 1973. Drafts of most chapters are cur­ ment, I advise the Senator, will have the Mr. President, I oppose the enactment rently under review. The performance effect of striking title I only, leaving title of S. 5, the Full Opportunity and Nation­ measurement system is now in the proc­ II. al Goals and Priorities Act, for several ess of being applied in several areas, in­ Mr. MONDALE. I do not wish to prej­ reasons. cluding drug abuse. The National Science udice the course which the Senator from I share a deep concern for the prob­ Foundation has awarded grants to the Ohio wishes to take, but it might be ap­ lems and the goals mentioned by the University of Michigan Survey Research propriate at this point, if he wishes, to sponsor of the bill, the distinguished Center, the National Planning Associa­ offer his amendment, and we could go to Senator from Minnesota. It is an ap­ tion and the Urban Institute for study in the debate on it. pealing bill in many ways. It puts one on this area. A progress report should be Mr. TAFT. I would be glad to do so, if the side of the angels, backed by many available shortly after January I, 1973. there are no other requests for time. well-meaning groups, I am sure. Before superimposing upon the Presi­ Mr. President, I send to the desk an Let me say very emphatically that I dent a staff to interpret social indicators amendment and ask that it be stated. believe that the formulation of national leading to policy recommendations, much The PRESIDING OFFICER. The goals and priorities must be an integral more research is needed in developing amendment will be stated. part of policymaking in both the execu­ and refining such measures and in de­ The amendment was read, as follows: tive and legislative branches of Govern­ termining the relationship between social On page 1, Hne 5, strike all through line ment, and I do not consider that we have and economic indicators. During the 24 on page 7. done an adequate job in that regard in committee hearings which were held on either branch of the Government, in re­ this bill in July of 1971, there seemed to The PRESIDING OFFICER. There is cent years, at least. In my judgment, be a consensus among the witnesses that a time limitation on the amendment of however, this bill will hamper rather meaningfUl social data is difficult to ob­ 30 minutes per side. The Senator from than assist in achieving this objective. tain, and perhaps in a premature stage Ohio has 30 minutes, and the manager of S. 5 creates unnecessary bureaucratic of development. Dr. Raymond Bauer, the bill has 30 minutes. Who yields time? mechanisms which will duplicate existing professor of business administration at Mr. TAFT. I yield myself such time as efforts, with no provision for coordina­ the Harvard Graduate School of Busi­ I may use. tion with related structures already op­ ness Administration testified that: Mr. President, I offer this amendment erative in'both the executive and legis­ One of the biggest objections that wasn't because I think the issues involved be­ lative branches of Government. raised here this morning to the councll of tween title I and title II are quite differ­ Title I of this bill establishes a Coun­ soclal advisors but which has cirCUlated in ent. cil of Social Advisers in the Executive Of­ the science community, has been that sociol­ As I have indicated in my remarks on fice of the President and requires an an­ ogy, anthropology, and slmllar disciplines the bill, I feel that there is a very defi­ nual social report by the President to aren't as far advanced as the economics were nite need in the legislative area. after the Congress. The administration op­ In 1945. adequate study, for setting UP additional poses the grafting of an additional I suggest, Mr. President, that much staff assistance, especially for the minor­ bureaucratic layer onto the Executive Of- more research is needed before the en- ity, in studying and analyzing various July 25, 1972 CONGRESSIONAL RECORD -SENATE 25241 legislative proposals and getting an over­ would send to the Congress. In it, the ly plagued progress in social fields has view and overall concept of the national Council would seek to evaluate ongoing been that each agency has its own pet problems and priorities as we ought to social programs and make recommenda­ project and it is not about to put out see them in Congress. tions to Congress and the public as to information or data which casts doubt I think the cause of Congress could what we need and what they would rec­ upon its programs. benefit from having a body such as this ommend that we do, or do better, to im­ If it is Headstart, they say what this to call upon. I do not think the bill as prove conditions in the lives of allAmeri­ Nation needs is Headstart. If they have presently drafted, even with the im­ cans. any bad reports, they burn them at mid­ provements that have been suggested­ This bill arose out of a feeling I had, night, so that no one ever hears about and they are considerable improve­ which was shared by almost everyone in those problems. Every department and ments-and in at least one case adopted Congress--and, as I went about my State agency and every suboffice puts out only with regard to the selection of the di­ and the country, which was shared by one kind of information-and that is fav­ rector and the assistant director, com­ almost everyone in the country; namely, orable information. Each looks at its own pletely correct this. that there is something that has gone restricted field without looking, as much I do not want to give the impression wrong with the way in which we make our as it shOUld, at the total field. that I am in favor of title II or that I choices and our judgments when we deal What the Council of Social Advisers expect to vote for the bill because of the with human problems. Somehow, we seeks to do is to take a total look at hu­ present form of title II. I merely say that back into the future; we guess, we have man programs, because they are related. I feel that there is a real place in the hunches, we operate on those hunches A human being is not a series of cate­ future, both for the House of Represent­ and those guesses and sometimes develop gories-health, education, and nutrition. atives and the Senate, to have a body programs which are counterproductive. A human being is a total product of on which they may call for suggestions Sometimes we spend millions of dollars humanity. as to the specific priorities that might be on programs that do not work at all. We should take the same kind of en­ undertaken to provide a little more cross Sometimes we spend vasts amounts of compassing view, a critical view, an over­ reference, perhaps, on the specific prob­ money on programs which do very little all view, of social problems. That is what lems considered by a particular commit­ good, and sometimes we fail to give re­ the Council of Social Advisers would do. tee, so that we can better establish the sources to other programs which are lt is an agency that would be capable national priorities. helpful but which are not so successful of being critical and skeptical of all pro­ I do not think we can substitute the as they could be because we simply are grams. I do not know how many times judgment of any such body or the rec­ not acting on the best information that during the course of a Representative's ommendations of any such body for the could be developed. or a Senator's career, he has heard an determination ultimately of national pri­ We have seen several examples to agency come before the Congress to orities as determined by Congress. At the which I have already referred, in which criticize itself. I have served here 8 years, same time, I recognize that Congress the Federal Government appears to be and I have not heard it yet. could and well might benefit from hav­ the last to know about profound human What we need to do in the social field ing additional staff assistance and addi­ problems--problems as essential and is to get a high level, higWy professional, tional information and suggestions in ~lementary as basic nutrition, problems higWy skilled staff in the Council of this regard, aside and apart from the hke the exploding American cities in the Social AdVisers, with the best minds we Executive. But for the reasons I have al­ late 1960's, questions about welfare­ can find in the country, to start analyzing ready indicated in my talk on the b1ll who is on welfare, why are they there, these programs and developing, at arm's generally, I do not believe that this is what can we do to reduce, in a sensible length, so to speak, social data so that we true of the executive branch. How we and humane way, the cost of the wel­ can begin to look courageously and forth­ can expect to impose an independent fare burden on how can we educate our rightly at OU!' social problems. This we do body of this sort upon the executive children best. not do today. That is why I think this branch at this time, when we already For 2 Y2 years, the Senator from New kind of agency is needed. have ongoing the current efforts of OMB York an~ I, and many others, have been I agree that we already spend millions to do just exactly this within the Office of engaged In a deep and probing effort to of dollars on data and on reports now, the President, is hard for me to under­ determine how we can establish systems but so many of them are self-serving and stand. It seems to me that an independ­ which will lead to equality of educa­ limited. Many of them do not ask the ent bodY is bound to run into confiict tional opportunity in this country. right questions-deliberately. The result with the already existing structure and What could be more basic, what could is what one statistician called "cold that, indeed, rather than helping or be more fundamental to the American facts"-the kind of information that does speeding up or clarifying an analysis of creed than pursuing strategies on edu­ not do us anl good. They can tell us how the national needs and priorities that cation which will permit every child in many bricks are in some school bUilding would come from the staff of the Presi­ this country to have an opportunity? but if we want to know what the require­ dent and the OMB and the various de­ Yet I am sure that the distinguished ments are in order to learn anything, partments of the Government, this Senator from New York will agree with they do not have the slightest idea. They would only add another layer which me, that the value of the literature and will tell us how many soybeans we would add to the complication of the the statistics in the field of education is planted last year, but when we ask how overall picture involved. appalling; it is abysmal. We spent many people are hungry, they do not For that reason, I oppose title 1. I feel months trying to find answers to ele­ have the slightest idea. that the Senate ought to have a separate mentary questions in the field of edu­ We have to start getting answers to opportunity to vote for the elimination of cation alone, on which we spend I think the "hot" facts of American life. Congress title I before it undertakes to make a about $50 million a year. It id enough will have to face the future and develop judgment on the question of title II, to shatter anyone's confidence in the strategies for progress in the human which seems to me to be an entirely sep­ wisdom and ability with which this coun­ field, or we will see lots more of what arate question, and that is the only pur­ try conducts its public affairs, particu­ we are already seeing today, a greater pose for which I have offered the amend­ larly in the field of human problems. sense of depression and cywcism about ment at this time. Mr. TAFT. If the Senator will yield I the capacity of the American Govern­ should like to recall to the Senator, a~d ment to deal with the problems of the Mr. President, I reserve the remainder I agree with him, that so far as research of my time. people of this Nation. is concerned, I have emphasized that I do not say that the Council of Social The PRESIDING OFFICER (Mr. STAF­ particularly, but especially with regard Advisers will answer all those questions, FORD). The Senator from Minnesota is to the field of education, I thought it was but I do say that it would be an impor­ recognized for 5 minutes. pointed up in the President's message on tant new asset in philosophy and direc­ Mr. MONDALE. Mr. President, the education of 2 years ago and by his ad­ tion. It will be the first time that we have present proposal embodied in title I, viser at that time in this area, that this tried to deal in a comprehensive, sophis­ which is now before us, would create a field was in dire need of assistance. Con­ ticated, and strategic way with the hu­ Council of Social Advisers, composed of gress responded in part, but, in my opin­ man problems that face the people of three members selected by the President. ion, not adequately. this country today. I do not believe Con­ lt would assist him in preparing an an­ Mr. MONDALE. I thank the Senator, gress can continue to back into the fu­ nual social report, which the President but one of the things that has profound- ture the way it has been doing. 25242 CONGRESSIONAL .RECORD - SENATE July. 25;, 1972

Mr. JAVITS. Mr. President, my back­ During the Senator'scareer in the sen­ And every aspect of my'experience bears ing for Senator MONDALE'S idea con­ ate, he has spent several man-years lis­ it out. I hope very much that the Senate tained in title I-and I think Senators tening to human problems--the Senator will keep the integrity of this bill an have finally grasped the difference be­ can name the problem, whatever it is, important function for the executive de­ tween the two responsibilities-is that and he has dealt with it. partment and an important resource for we have at last focused debate where it What would the Senator say after his Congress. needs to be focused in respect of this experience over the years of the condition The PRESIDING OFFICER. Who particular matter. But I would like my of the data and information that is avail­ yields time? colleague from Ohio to understand my able to assist us in dealing with these Mr. TAFT. Mr. President, I yield 3 own experience which dictated the sup­ problems? minutes to the Senator from Colorado. port of this particular title. It is related Mr. JAVITS. It is woefully inadequate Tne PRESIDING OFFICER. The Sen­ to the fact that I have served on the in how it relates to the future. How does ator from Colorado is recognized for 3 Joint Economic Committee for a long hunger relate to education? How does minutes. time and I have seen over the years the v:mereal disease relate to school drop­ Mr. DOMINICK. Mr. President. I growing relationship between the eco­ outs? How does drug addiction relate to thank my very distinguished friend, the nomic and the social problems of the the ability or desire to hold a job and the Senator from Ohio. country, and the disparity in the amount degree of antagonism and the ability to Mr. President, the thing that concerns of expertise which existed at the top be rehabilitated so as to be able to hold me with title I of the bill-and before level in determining that relationship ajob? this we have been talking about title and what it should be. This has been Mr. MONDALE. Mr. President, does ll-is that if we look at section 102, page very marked to me, and it is today. the Senator recall the hearings we held­ 2 of the bill, it provides for a review by We had before us the three members and these are typical-on the question the President of the State, local, and pri­ of the Council of Economic Advisers only of theJob Corps? vate efforts designed to create the condi­ yesterday-Dr. Stein, Mrs..Whitman, The PRESIDING OFFICER. The time tions expressed in section 101. The condi­ and Mr. SOlomon-very distinguished of the Senator has expired. tions specified in section 101 cover the people, very able people, but economists Mr. MONDALE. Mr. President, I yield whole range of social efforts. and essentially able to give us the basic the Sblator from New York an addi­ So I would presume that under thLos policy that our country should pursue tional 5 minutes. the President would be required to deal respecting its economics at home and The PRESIDING OFFICER. The Sen­ with the Boy Scouts, the Red Cross, the abroad. ator is recognized for an additional 5 Visiting Nurses Association, the Kennedy But in humanistic terms, there was no minutes. Center, the Arts and Humanities, and expertise, at all, for example. Mr. MONDALE. Mr. President, the every single type of third group organiza­ President Eisenhower was very proud Senator will recall that we asked ap­ tion which we are unique for in this of his Commission on National Goals propriate agencies to provide data to tell country where private people are trying that he established which was headed us which manpower program delivered to do something on their own. by a former president of Brown Univer­ the highest return in terms of the num­ We then have to fit that, or the Presi­ sity. And we were very much taken, for ber of enrollees who found employment dent has to, into his so-called social re­ example, with the work of the Haley afterward; how many received a better port, not to speak of the number of ef­ Commission on the resources of the opportunity to develop after than be­ forts being made in local communities all country and when those resources would fore; what was the dropout rate; what over this country to try to upgrade their be used up. was the cost per enrollee; what in their own conditions. Many of us are deeply concerned now opinion, based on the data, were the best Then the President is required under with the energy use in this country. manpower programs per dollar spent. this to ascertain the overall progress and Many of us are concerned with spot These, it seems to me, would be common­ effectiveness of Federal efforts designed problems in the country, such as drug place and elementary questions, the kind to carry out the policies in section 102. addiction, venereal disease, and all of of questions that any businessman must I recall that the President in his state the social trends having subsequent con­ ask am: answer if he has any hope of of the Union message said that the cate­ sequences which pipe into what we survival. gorical grant program had-and I am ought to be doing in terms of the Na­ Can the Senator recall the questions not quoting him but am paraphrasing tion's society. and answers? They said: "Yes, we will him-resulted in an enormous increase However, there is no group in the Na­ submit a tabulation telling you those of bureaucracy with very little increase tion such as a Council on Social Advisers things." I still remember the tabulation. in the solution of the problems which the which ties it together. Footnote 2 said "not available." The categorical grants were designed to deal The fact is that the gifted idea of the tabulation was full of ditto marks for with and that we had not changed this Senr-tor from Minnesota (Mr. MONDALE) footnote 2. That was not something pe­ in a long period of time. As a matter of to this bill represents an addition to culiar to this administration. It has been fact, it had proliferated and resulted in the new world, call it the new politics, true of all previous administrations. We a growth in both the problems and the the new development needs, or the new simply do not have the basic information bureaucracy. development conscience which is per­ to make a proper jUdgment. He, therefore, suggested revenue shar­ haps best characterized by the environ­ Mr. JAVITS. The Senator is absolutely ing as a method of doing it. mentalists and population control peo­ correct. It goes to demonstrate what I This is an assessment of national goals ple. said a moment ago. The Employment and priorities. Yet in the 2 years since These are new problems which have Act was passed in 1946. That is a small he announced this, we have yet to get a hit us in life. Simply put, the Council matter. It was 26 years ago. It developed revenue sharing bill through Congress. would keep us abreast of the facts and a human kind of consciousness on the We are holding hearings in the Senate remind us that our practices are no part of our country, and the problems now. However, the bill has gone nowhere longer adequate. and the interest of our country have in this Congress. So, although the Presi­ Mr. MONDALE. Mr. President, will the simply outrun it. dent has done this and has suggested Senator yield? How do we modernize it and bring it what some of the efforts might be, noth­ Mr. JAVITS. Mr. President, I yield to up to date? We argued the question ing has been forthcoming from Con­ the Senator from Minnesota. whether we should merge the Social Ad­ gress. Mr. MONDALE. Mr. President, I do not viser group into the Council of Economic The PRESIDING OFFICER. The time know of any person in the Senate who Advisers. of the Senator has expired. deals with more human problems than The Senator from Minnesota con­ Mr. TAFT. Mr. President, I yield the does the Senator from New York. He is vinced me and convinced a majority of Senator from Colorado 2 additional min­ the ranking member of the Committee on the committee that, considering our his­ utes. Labor and Public Welfare. He serves on tory, it could not be done as effectively The PRESIDING OFFICER. The Sen­ the subcommittees on Labor, Education, there as by another body. ator from Colorado is recognized for 2 Health, and Employment, Manpower, and Mr. President, there was no other way additional minutes. Poverty. Perhaps there are several that considering the history of the Employ­ Mr. DOMINICK. Mr. President, this I have forgotten. ment Act of 1946. I am convinced of that. is what he has to transmit again. And I i July 25, 1972 CONG~SSIONALRECORD -SENATE 25243 would presume that he, could make al­ Mr. TAFT. I do not feel it is because liable social indicator and analysis into most the same budget' speech or state they' are dealing in a specialized field. policy decisionmaking. of the Union message next year, assum­ Here they are dealing with the life of the Mr. President, the social sciences of ing that he gets reelected. And if we have Nation and the running of the Govern­ this Nation have made tremendous the same makeup in Congress, we will, ment., They are dealing with the Depart­ advances in recent years. New forms of get nowhere. As I said before" I hope mentof HEW and Labor, and an entire data collection, new techniques of analy­ that we can change the makeupo( Con,­ a~ea of Government and setting up a con­ sis, and new methods of inquiry have gress, but whether we can or not de- ' flicting report and a conflicting exam­ placed many of these sciences on a first pends upon what happens this fall. ining body which will report to the Presi­ foundation. I think that we in the Gov­ Mr. President, you can go down dent,presumably, and presumably do his ernment must make the effort to bring through title I of the bill. It imposes on bidding, but I think it only adds confu­ this kind of knowledge into our policy the President a lot of work, part of which sion to a confusing situation already in thinking on a regularized basis. he is going to do in his state of the Union Government today. I am the first to admit that social en­ message, in the budget, and in connec­ It ,would perpetuate the problems we gineering is difficult and fraught with tion with proposals on legislation. But have and it would add another layer of danger. Yet, I also state that to proceed then it creates within the White House, bureaucracy on top of these areas. It is from ignorance, to close out an impor­ without his consent, a Council of Social unsound in concept and I believe that it tant sector of our national knowledge is Advisers, and they will be appointed by should be defeated. also fraught with danger. the President, but with advice of the Mr. President, at this time I have no That is why I have cosponsored and Senate. That· is improvement, at,least, further requests for time. I am ready to supported this bill, Mr. President. And, over what we had in other proposals. yield back such time as I have on the that is why I believe the Senate would do Presumably this is a group to be of as­ amendment and on the bill. well to pass it today. sistance to the President but he already Mr. MONDALE. Mr. President, I yield Mr. DOMINICK. Mr. President, I op­ has his Council of Economic Advisers, back my time. pose the bill before the Senate, S. 5. and he already has his White House staff. The PRESIDING OFFICER. All time Title I provides as a goal that all Ameri­ Now, to add another one, it seems to me is yielded back. The question is on agree­ cans live in decency and dignity and to be adding a large number of personnel ing to the amendment of the Senator further defines this goal to be a continu­ at a great deal of expense without really from Ohio. ing responsibility of the Federal Govern­ accomplishing any objective which is dif­ The amendment was rejected. ment. The goal is described as including ferent from that of the groups already Mr. HUMPHREY. Mr. President, I such vast areas as educational and voca­ established. For example, it is supposedly congratulate my colleb.gue from Minne­ tional opportunities, access to housing the duty and function of the Council to sota (Mr. MONDALE) on what I think is a and health care and provisions for assist the President in the preparation of valuable and important piece of legisla­ special assistance to the handicapped a social report. Well, that is just like the tion. I am honored to be a cosponsor of and other less fortunate members of so­ group he already has there. this program and have long urged its ciety. To accomplish these goals a Coun­ The PRESIDING OFFICER. The Sen­ adoption. cil of Social Advisers in the Executive ator's 2 minutes have expired. The Full Opportunity and National Office of the President is established and Mr. DOMINICK. I support the amend­ Goals and Priorities Act of 1972 fills a the President is required to submit an ment of the Senator from Ohio. critical policymaking void at the highest annual social report to the Congress. The PRESIDING OFFICER. Who levels of our Government. This legisla­ Salary expenditures for this Council are yields time? tion establishes the opportunity for all authorized and are not to exceed Mr. TAFT. Mr. President, I yield my­ Americans to live in decency and dig­ $900,000 annually. self such time as I may consume. nity as a national goal, and provides the Title II declares that Congress needs I think the Senator from Colorado mechanisms necessary for advancing this more information upon which to base made the point very well in support of social goal. decisions affecting national priorities the amendment. I advise the Senate at Just as we have an Economic Report and expenditures in these fields of social this time I do not expect to ask for the of the President on the economic condi­ endeavor. Accordingly, a new Office of yeas and nays on this amendment be­ tion of our Nation, this legislation would Goals and Priorities Analysis is created cause it seems to me to express the very require the President and his newly cre­ for the Congress. Reports from this of­ essence of the bill itself and Senators ated Council of Social Advisers to pre­ fice are to be submitted to various com­ can vote one way or the other on the pare and submit to the Congress a social mittees in Congress. amendment and on the bill. report of the President. Such a report Mr. President, it is obvious that no However, it seems to me that the Sen­ would add immeasurably to the debate Member of the Congress or any citizen ator from Colorado made the real point over human progress, sketch the alterna­ would find the broad goals stated in this that is involved here. I was interested tives and sacrifices we as a nation must act to be objectionable. However, this to hear the Senator from New York dis­ make if we are to achieve social justice bill is not the proper means to effectively cuss sound business administration, be­ for all our people, and provide a sound accomplish the desired result, namely, to cause that is what we are talking about policy input of social factors into deci­ cure the social ills in our country. The here. It seems to me that the group that sions over our national priorities and the bill sets up another council that would is going to have to determine in any allocation of our national resources. This duplicate the functions of the Domestic industry what the national priorities are council provides the vital information on Council which was established in the Ex­ and how the various programs are work­ a timely basis, needed for sound econom­ ecutive Office of the President in July ing is the President, his Cabinet, and ic and social decisions. 1970. The Domestic Council assesses na­ his staff, the people directly responsible This legislation also establishes in the tional needs and coordinates the estab­ to the President. They are the ones to Congress an Office of Goals and Priori­ lishment of national priorities concern­ make the assessment and that is the only ties Analysis-to evaluate the data, the ing domestic issues and also maintains a wayan effective administration can op­ information, and the choices submitted continuous review of ongoing programs. erate or that the Government can by the President's Council of Social Ad­ The Council of Social Advisors created operate. visers, and to independently analyze the by this bill was not requested by the Pres­ Mr. MONDALE. Mr. President, will the directic'1. and thrust of the social priori­ ident and is not necessary to achieve the Senator yield? ties of our Nation. stated objectives contained in the bill. Mr.T~.Iyield. Mr. President, I am proud to have been The same bill was before the Senate in Mr. MONDALE. Does the Senator a cosponsor of this legislation. I am 1970. I spoke against the bill on Septem­ make the same statement with respect proud to stand before the Senate today ber 10, 1970, for identical reasons. to the Council of Economic Advisers. and speak on its behalf. And, I am proud We not only create a council in the Mr. TAFT. I think the Council of Eco­ to cast a vote for its enactment. executive branch which oversees and nomic Advisers is basicallY responsible to I have long thought that the truly overlaps existing programs but we also the President. great tragedies of our Federal Govern­ create a new office in the Congress. Both Mr. MONDALE. That is an institution ment are the lack of planning, and more the Council and congressional office are that is identical. speciflcally, the too often lack of any re- required to submit social reports. Rather 25244 CONGRESSIONAL RECORD - SENATE July 25, 1972 than coordinate and simplify our com­ is to measure the Nation's accomplish­ The senator from South Dakota (Mr. munications with the White House, de­ ments with respect to social issues. For MUNDT) is absent because of illness. partments and agencies, I predict that example, how do we assess progress in If present and voting, the Senator all this bill will accomplish is to further meeting civil rights goals? By counting from Illinois (Mr. PERCY) would vote confuse, duplicate and disrupt existing the number of minority group members "yea." channels of communication. The various in various kinds of employment? By The result was announced-yeas 51, committees of the Congress are quite counting the number of such people liv­ nays 40, as follows: capable of assimilating the information ing in suburban communities? These are [No. 311 Leg.) and data that is required. The committee useful indicators, but they clearly are not report which contains the minority views adequate to indicate the full range of so­ YEAS-51 Anderson Hart Montoya of Senator TAFT and myself states that cial values which must be taken into Bayh Hartke Moss we need more information concerning account to measure national progress in Bentsen Hatfield Musk1e the great problems facing our Nation to­ meeting these important goals. Bible Hollings Nelson Brook Hughes Pastore day, such as welfare, housing and urban Yet the fact that our knowledge and Brooke Humphrey Pearson renewal. We do need such information; techniques for measuring social progress Burdick Inouye Proxmlre however, we first need to develop more are not perfect does not constitute an Byrd, Robert C. Jackson Randolph fully reliable social indicators in order argument for inaction in dealing with Cannon Javits Rlblcoff Case Kennedy Schwelker to obtain accurate information. Why these problems. As imperfect as our in­ Chiles Magnuson Spong does the Senate continue to create new formation may be with respect to so­ Church Mansfield Stafford offices and increase bureaucratic confu­ cial factors, we need every bit of infor­ Cranston Mathias Stevens Fong McGee Stevenson sion rather than coordinating these new mation we can collect, and all the skill Fulbright McIntyre Symtngton offices or new programs within existing we can muster to analyze this informa­ Gravel Metcalf Tunney departments thereby saving some funds tion and assess its impact with respect Harris Mondale WI111ams for the taxpayers of the country and to national policies. NAY8-40 assuring the orderly growth of govern­ The very fact that we establish a Coun­ Aiken Dole Packwood ment. Mr. President, I oppose the bill. cil of Social Advisers in the executive Allen Dominick Roth It is another example of using money for branch and an Office of Goals and Pri­ Allott Eastland Saxbe Beall Ervin Scott administrative purposes instead of using orities Analysis in the Congress will serve Bellmon Fannin Smith it to assist those persons who are truly to focus national talent and resources Bennett Goldwater Sparkman deserving. on improving our capability to study Boggs Griffin Stennis Buckley Gurney Taft Mr. KENNEDY. Mr. President, I want these problems. Thus, this bill is an es­ Byrd, Hansen Talmadge to express my strong support for S. 5, sential step in providing for a continu­ Harry F., Jr. Hruska Thurmond the Full Opportunity and National ing assessment of national progress on Cook Jordan, Idaho Tower Goals and Priorities Act, which I was Cooper Long Weicker social issues. The President and the Con­ Cotton McClellan YQung proud to cosponsor. This landmark bill gress need the information and policy Curtis Mlller recognizes the enormous changes in analysis which this bill would provide. NOT VOTING-9 American society since World War II, The better informed policies which would Baker Gambrell Mundt and the need to accord the same national result would benefit all our people. Eagleton Jordan, N.C. Pell attention to social indicators that we do I urge each Senator to vote for this Ellender McGovern Percy to economic indicators. landmark legislation. So the bill (S. 5) was passed, as fol- The bill is modeled on the Full Em­ The PRESIDING OFFICER. The bill lows: ployment Act of 1946, which enunciated is open to further amendment. If there S. 5 the national goal of full employment and be no further amendment to be proposed, An act to promote the publlc welfare which established the Joint Economic the question is on the engrossment and Be it enacted by the Senate and House Committee, the Council of Economic third reading of the bill. of Representatives of the United States of Advisers, and the annual Economic Re­ The bill was ordered to be engrossed America in Congress assembled, That this Act port of the President. for a third reading and was read the may be cited as the "Full Opportunity and This bill attempts to provide similar third time. National Ooals and Priorities Act." mechanisms for gathering data on so­ The PRESIDING OFFICER. The Sen­ TITLE I-FULL OPPORTUNITY cial indicators and for assessing their ator from Ohio has 16 minutes remain­ DECLARATION OF POLICY significance with respect to national ing on the bill. Does the Senator yield SEC. 101. In order to promote the general policy on a host of social issues in such back his time? welfare, the Congress declares that it is the areas as health, education and training, Mr. TAFT. I yield back the remainder continuing policy and responsibllity of the rehabilitation, housing, vocational op­ of my time. Federal Oovernment, consistent with the pri­ portunities, the arts and humanities, Mr. MONDALE. I yield back the re­ mary responsibilities of State and local gov­ and providing special assistance for the mainder of my time. ernments and the private sector, to promote The PRESIDING OFFICER. All time find encourage such conditions as will give mentally ill and retarded, the deprived, every American the opportunity to live in the abandoned, and the criminal. is yielded back. The question is on pas­ decency and dignity, and to provide a clear To carry out these goals, the bill estab­ sage of the bill as amended. The yeas and precise picture of Whether such condi­ lishes a Council of Economic Advisers and nays have been ordered and the tions are promoted and encouraged in such in the Executive Office of the President, clerk will call the roll. areas as health, education and training, re­ and a requirement for an annual social The legislative clerk called the roll. habilitation, housing, vocational opportuni­ report by the President to the Congress. Mr. ROBERT C. BYRD. I announce ties, the arts and humanities, and special as­ that the Senator fron Missouri (Mr. sistance for the mentally ill and retarded, the Title II of the bill establishes within the deprived, the abandoned, and the criminal Congress an Office of Goals and Pri­ EAGLETON), the Senator from Louisiana and by measuring progress in meeting such Ql"ities Analysis. This office would review (Mr. ELLENDER), the Senator from needs. the annual social report submitted by Georgia (Mr. GAMBRELL), the Senator SOCIAL REPORT OF THE PRESIDENT from North Carolina (Mr. JOTlDAN), the the President; and drawing on that and SEC. 102. (a) The President shall transmit other sources, would prepare an annual Smator from South Dakota (Mr. Mc­ to the Congress not later than February 15 report to the Congress setting forth goals GOVERN), and the Senator from Rhode of each year a report to be known as the so­ and priorities in the general context of Island (Mr. PELL) are necessarily absent. cial report, setting forth (1) the overall prog­ needs, costs, available resources, and On this vote, the S~nator from Georgia ress and effectiveness of Federal efforts de­ program effectiveness. (Mr. GAMBRELL) is paired WIth the Sena­ signed to carry out the policy declared in sec­ Mr. President, one of the criticisms tor from South Dakota (Mr. MCGOVERN). tion 101 with particular emphasis upon the If present and voting, the Senator from manner in which such efforts serve to meet which has been raised against the bill national social needs in such areas as health, is that our knowledge of social indicators Georgia would vote "nay" and the Sena­ education and training, rehabilitation, hous­ is not advanced enough to gather the tor from South Dakota would vote "yea." Ing, vocational opportunities, the arts and relevant social information and analyze Mr. GRIFFIN. I announce that the humanities, and special assistance for the it effectively. It is pointed out that it is Se-nator from Tennessee (M.r. BAKER) mentally ill and retarded, the deprived, the a lot simpler to measure the cost of liv­ and the Senator from TIlmois (Mr. abandoned, and the criminal; (2) a review ing or the gross national product than it PERCY) are necessarily absent. of State, local, and private efforts designed July 85, 197.8 CONGRESSIONAL RECORD - SENATE 25245 to create the conditions specified in section pollcy, and to make recommendations to the and w1ll prOVide the Congress with the in­ 101; (3) current and foreseeable needs in the President with respect thereto; formation, data, and analysis necessary for areas served by such efforts and the progress (4) to develop priorities for programs de­ enlightened priority decisions. of development of plans to meet such needs; signed to carry out the pollcy declared In ESTABLISHMENT and (4) programs and policios for carrying section 101 and recommend to the President SEC. 202. (a) There Is established an Of­ out the policy declared in section 101, to­ the most efficient way to allocate Federal fice of Goals and Priorities Analysis (here­ gether with such recommendations for legis­ resources and the level of government-Fed­ after referred to as the "Office") which shall lation as he may deem necessary or desirable. eral, State, or local-best suited to carry out be within the congress. (b) The President may transmit from time such programs; (b) There shall be In the Office a Director to time to the Congress reports supplemen­ (5) to make and furnish such studies, re­ of Goals and Priorities Analysis (hereafter tary to the social report, each of which shall ports thereon, and recommendations With referred to as the "Director") who shall be include such supplementary or revised rec­ respect to programs, actiVities, and legisla­ appointed Jointly by the majority leader of ommendations as he may deem necessary or tion to carry out the policy declared in sec­ the Senate and the Speaker of the House desirable to achieve the pOliCY declared in tion 101 as the President may request. of Representatives and confirmed by a major­ section 101. (6) to make and furnish such stUdies, re­ Ity vote of each House, and an Assistant (c) The social report, and all supplemen­ ports thereon, and recommendations with Director of Goals and Priorities Analysis tary reports transmitted under subsection respect to programs, activities, and legisla­ (hereinafter referred to as the "Assistant (b) of this section, shall, when transmitted tion as the President may request in apprais­ Director") who shall be appointed jointly to Congress, be referred to the Committee on ing long-range aspects of social pollcy and by the minority leader of the Senate and the Labor and Publ1c Welfare of the Senate and programing consistent with the pollcy de­ minority leader of the House of Represent­ the Committees on Education and Labor and clared in section 10l. atives and confirmed by a majority vote Interstate and Foreign Commerce of the (d) RecogniZing the predominance of of each House. The Office shall be under the House of Representatives. Nothing in this State and local governments In the social control and supervision of the Director, and subsection shall be construed to prohibit the area, the President shall, when appropriate, shall have a seal adopted by him. The As­ consideration of the report by any other com­ prOVide for the dissemination to such States sistant Director shall perform such duties mittee of the Senate or the House of Repre­ and localities of information or data devel­ as may be assigned to him by the Director. sentatives with respect to any matter Within oped by the Councll pursuant to SUbsection and, during the absence or incapacity of the the jurisdiction of any such committee. (c) of this section. Director, or during a vacancy In that office, COUNCIL OF SOCIAL ADVISERS TO THE (e) The Councll shall make an annual re­ shall act as the Director. The Director shall PRESIDENT port to the President In January of each year. designate an employee of the Office to act (f) In exercising Its powers, functions, and as Director during the absence or Incapacity SEC. 103. (a) There Is created In the Ex­ duties under this Act- ecutive Office of the President a Counell of of the Director and the Assistant Director, or (1) the Councll may constitute such ad­ during a vacancy In both of such omces. Social Advisers (hereinafter called the Coun­ visory committees and may consult with cll). The Councll shall be composed of three (c) The annual compensation of the Di­ such representatives of industry, agriCUlture, rector shall be equal to the annual compen­ members who shall be appOinted by the Pres­ labor, consumers, state and local govern­ ident, by and with the adVice and consent of sation of the Comptroller General of the ments, and other groups, organizations, and United States. The annual compensation of the Senate, and each of whom shall be a per­ individuals as it deems advisable to insure son who, all a result of his training, experi­ the Assistant Director shall be equal to that the direct participation In the Council's of the Assistant Comptroller General of the ence, and attainments, Is exceptionally qUal­ planning of such interested parties; Hied to appraise programs and activities of United States. the Government in the light of the pollcy (2) the Councll shall, to the fullest extent (d) The terms of office of the Director and declared In section 101, and to formulate and possible, use the services, fac1l1ties, and in­ the Assistant Director first appointed shall recommend programs to carry out such pol­ formation (inClUding statistical Informa­ expire on January 31, 1973. The terms of Icy. Each member of the Councll, other than tion) of Federal, State, and local government office of Directors and Assistant Directors the Chairman, shall receive compensation at agencies as well as of private research agen­ subsequently appointed shall expire on Jan­ the rate prescribed for level IV of the Execu­ cies, in order that duplication of effort and uary 31 every four years thereafter. Except tive Schedule by section 5315 of title 5 of the expense may be avoided; in the case of his removal under the provi­ United States Code. The President shall des­ (3) the Councll shall, to the fUllest extent sions of subsection (e). a Director or As­ ignate one of the members of the Councll possible, Insure that the Individual's right sistant Director may serve untll his successor as Chairman who shall receive compensa­ to privacy Is not infringed by Its activities; Is appointed. tion at the rate prescribed for level II of such and (e) The Director or Assistant Director may schedule. (4) (A) the Council may enter Into es­ be removed at any time by. a resolution of sential contractual relationships with edu­ the Senate or the House of Representatives. (b) The Chairman of the Councll Is au­ cational Institutions, private research or­ thorized to employ, and fix the compensa­ A vacancy occurring during the term of the ganizations. and other organizations as Director or Assistant Director shall be filled tion of, such specialists and other experts as needed; and may be necessary for the carrying out of Its by appointment, as prOVided In this section. (B) any reports, stUdies, or analyses re­ (f) The professional staff members, In­ functions under this Act, Without regard to sulting from such contractual relationships the provisions of chapter 51 and SUbchapter cluding the Director and Assistant Director, shall be made avaUable to any person for shall be personq selected without regard to III of chapter 53 of such title 5, United States purposes of study. Code, governing appointments in the com­ poUtical affiUations who, as a result of train­ (g) To enable the Council to exercise its Ing, experience, and attainments, are ex­ petitive service, and without regard to the powers, functions, and duties under this Act, provisions of relating to classification and ceptionally qualified to analyze and Interpret there are authorized to be appropriated (ex­ public poUcles and programs. General SchedUle pay rates, and is author­ cept for the salaries of the members and ized. subject to such provisions, to employ officers and employees of the Councll) such FUNCTIONS such other officers and employees as may be SUllIS as may be necessary. For the salaries SEC. 203. (a) The Office shall make such necessary for carrying out Its functions under of the members and salaries of officers and studies as It deems necessary to carry out this Act. and fix their compensation in ac­ employees of the Council, there Is authorized the purposes of section 201. Primary empha­ cordance with the provisions of such chapter to be appropriated not exceeding $900,000 sis shall be giver. to supplying such analysis 51 and SUbchapter III of chapter 53. in the aggregate for each fiscal year. as wlll be most useful to the Congress in (c) It shall be the duty and function of voting on the measures and appropriations the Councll- TITLE II-NATIONAL GOALS AND which come before It, and on providing the (1) to assist and advise the President in PRIORITIES framework and overview of priority consid­ the preparation of the social report; DECLARATION OF PURPOSES erations within Which a meaningfUl con­ (2) to gather timely and authoritative In­ SEC. 201. The Congress finds and declares sideration of Individual measures can be un­ formation and statistical data concerning de­ that there Is a need for a more expl1clt and dertaken. velopments and programs designed to carry rational formulation of national goals and (b) The Office shall submit to the congress out the pollcy declared in section 101, both priorities, and that the Congress needs more on March 1 of each year a national goals current and prospective, and to develop a detailed and current bUdget data and eco­ and priorities report and copies of such re­ series of social Indicators to analyze and nomic analysis in order to make Informed port shall be furnished to the Committee interpret such Information and data In the priority decisions among alternative pro­ on Appropriations of the Senate and of the llght of the policy declared in section 101 grams and courses of action. In order to meet House of Representatives. the Joint Economic and to compile and submit to the President these needs and estabUsh a framework of Committee, and other Interested committees. studies relating to such developments and national priorities within which indiVidual The report shall Include, but not be limited programs; decisions can be made In a consistent and to- (3) to appraise the various programs and considered manner, and to stimulate an In­ (1) an analysis, In terms of national goals activities of the Federal Government In the formed awareness and discussion of national and priorities, of the programs in the annual light of the pollcy declared In section 101 of priorities, it Is hereby declared to be the In­ bUdget submitted by the President, the Eco­ this Act for the purpose of determining the tent of Congress to establish an office within nomic Report of the President, and the Social extent to which such programs and activi­ the Congress which wUl conduct a continu­ Report of the President; ties contribute to the achievement of such Ing analysis of national goals and priorities (2) an examination of resources avallable I 25246 ·CONGRESSIONAL RECORD _.SENATE July 25, 1972 to the Nation, the foreseeable costs and ex­ to reconsider the vote by which the b1ll DEFINITIOks pected benefits ot existing and proposed Fed­ was passed. SEC. 3. For the purposes of this Act- eral programs, and the resources and cost Mr. JAVITS. I move to lay that motion (1) The term "depletion" or "depleted" impUcations of alternative sets ot national means any case in which the number of in­ priorities; and on the table. diViduals within a species or population (3) recommendations concerning spending The motion to lay on the table was stock- priorities among Federal programs and cours­ agreed to. (i) is at such a level that, in the deter­ es ot action, including the identlflcation of mination of the Secretary, such species or those programs and courses ot action which stock is threatened With extinction, should be given greatest priority and those MARINE MAMMAL PROTECTION (11) has declined to a significant degree which could more properly be deterred. ACT OF 1972 over a period of years, and the Secretary de­ (c) In addition to the national goals and termines that such decline Is continuing or priorities report and other reports and stud­ The PRESIDING OFFICER (Mr. is likely to resume, and that as a result such ies which the Olllce submits to the Con­ STAFFORD). The Chair, pursuant to the species or stock is likely to become threat­ gress, the Olllce shall prOVide upon request previous order, lays before the Senate ened With extinction within the foreseeable to any Member of the Congress further in­ S. 2871, a bill to protect marine mam­ future. formation, data, or analysis relevant to an mals, which the clerk will state by title. (2) The. term "dlstrlct court of the United informed determination of national goals and The assistant legislative clerk read as States" includes the District Court of Guam, priorities. follows: District Court of the Virgin Islands, District POWERS OF THE OFFICE Court of Puerto Rico, District Court of the A bill (S. 2871) to protect marine mam­ Canal Zone, and, in the case of American SEC. 204. (a) In the performance of its mals; to establish a Marine Mammal Com­ Samoa and the Trust Territory of the Paclflc functions under thls title, the Olllce is au­ mission, and for other purposes. Islands, the District Court of the United thorized- States for the District ·of HawaII. (1) to make, promUlgate, issue, rescind, The PRESIDING OFFICER. Without objection, the Senate will proceed to (3) The term "humane" in the context of and amend rules and regulations governIng the taking ofaxnsrine mammal means that the manner of the operations of the Olllce; its consideration. method of taking which involves the least (2) to employ and fix the compensation The Senate proceeded to consider the possible degree of pain and suffering practi­ of such employees, and purchase or otherwise bill, which had been reported from the cable to the mammal involved. acquire such furniture, olllce equipment, Committee on Commerce with an (4) The term "marine mammal" means books, stationery, and other supplies, as may amendment to strike out all after the any mammal which (A) is morphologically be necessary for the proper performance.of enacting clause and insert: adapted to .the marine environment (includ­ the duties ot the Olllce and as may be ap­ ing sea otters and members of the orders propriated for by the Congress; That this Act may be cited as the "Marine Mammal Protection Act of 1972". Slrenia, Pinnipedia and Cetacea), or (B) pri­ (3) to obtain the services of experts and ma.r1ly inhabits the marine environment consultants, in accordance with the provi­ FINDINGS AND DECLARATION OF POLICY (such as the polar bear); and, for the pur­ sions of section 3109 of title 5, United States SEC. 2. The Congress finds that- poses of this Act, includes any part of any Code; and (1) certain species and popUlation stocks such xnsrine mammal, including its raw, (4) to use the United States malls in the of marine mammals are, or may be, in danger dressed, or dyed fur or skin. ' same manner and upon the same conditions of extinction or depletion as a result of man's (5) The term "marine mammal product" as other departments and agencies ot the activities; means any item of merchandise which con­ United States. (2) such species and population stocks sists, or is composed in whole or in part, of (b) (1) Each department, agency, and in­ should not be permitted to diminish beyond any marine mammal. strumentality of the executive branch ot the the point at which they cease to be a func­ (6) The term "optimum sustainable pop­ Government, including independent agen­ tioning element in the ecosystem of which ulation" means, with respect to any popUla­ cies, is authorized and directed, to the extent they are a part, and. consistent with this tion stock, the number of animals which permitted by law, to furnish to the Office, major objective, they should not be permitted wlll result in the maximum productivity of upon request made by the Director, such to diminish below their optimum sustain­ the popUlation or the species, keeping in information as the Director considers neces­ able population. Further, measures should be mind the optimum carrying capacity or the sary to carry out the functions of the Office. immediately taken to replenish any species habitat and the health of the ecosystem of (2) The Comptroller General of the United or popUlation stock which has already dimin­ which they form a constituent element. states shall furnish to the Director copies ished below that population. In particular, (7) The term "optimum carrying capac­ of analyses of expenditures prepared by the elforts should be made to protect the rook­ ity" means the ablllty of a given habitat to General Accounting Office with respect to eries, mating grounds, and areas of similar support the optimum sustainable population any department or agency in the executive signlflcance for each species of marine mam­ of a species or popula.tion stock in a healthy branch. mal from the adverse elfect of man's ac­ state without diminishing the ab1l1ty of the (3) The Olllce of Management and Budget tions; habitat to continue that function. shall furnish to the Director copies of special (3) there Is inadequate knowledge of the (8) The term "person" includes (A) any analytic studies, program and financial plans, ecology and popUlation dynamics of such private person or entity, and (B) any officer, and such other reports ot a similar nature marine mammals and of the factors which employee, agent, department, or Instrumen­ as may be required under the planning­ bear upon their ab1llty to reproduce them­ tality of the Federal Government, of any programing-budgeting system. or any other selves successfully; State or political subdivision thereof, or ot law. (4) negotiations should be undertaken im­ any foreign government. (c) Section 2107 of title 5, United States mediately to encourage the development of (9) The term "population stock" or "stock" Code, is amended by- international arrangements for research on, means a group of marine mammals of the (1) striking out the "and" at the end of and conservation of, all marine mammals; same species or smaller taxa In a common paragraph (7); (5) marine mammals and marine mammal spatial arrangement, that interbreed when (2) striking the period at the end of products either- mature. paragraph (8) and inserting in lieu thereof (A) move in interstate commerce, or (10) The term "Secretary" means- a semicolon and the word "and"; and (B) alfect the balance of marine ecosys­ (A) the Administrator of the National (3) adding at the end thereof the follow­ tems in a manner which is important to OCeanic and Atmospheric Administration, ing new paragraph: other animals and animal products which Department of Commerce, as to all responsi­ "(9) the Director, Assistant Director, and move in Interstate commerce, bll1ty, authority, funding, and duties under employees of the Office of Goals and Priori­ and that the protection and conservation of this Act with respect to members of the order ties and Analysis.". marine mammals is therefore necessary to Cetacea and members, other than walruses, JOINT ECONOMIC COMMITTEE HEARINGS insure the continuing avallabll1ty of those of the order Plnnlpedia, and SEC. 205. The Joint Economic Committee of products which move in interstate commerce; (B) the Secretary of the Interior as to all the congress shall hold hearings on the and responslbll1ty, authority, and duties under national goals and priorities report and on (6) marine mammals have proven them­ this Act with respect to all other marine such other reports and duties of the Office as selves to be resources of great International mammals covered by the Act. it deems advisable. significance, esthetic and recreational as well (11) The term "moratorium" means a as economic, and it Is the sense of the Con­ complete cessation of the taking of marine PAYMENT OF EXPENSES gress that they should be protected and en­ mammals and a complete ban on the impor­ SEC. 206. All expenses and salaries of the couraged to develop to the greatest extent tation into the United States of marine Office shall be paid by the Secretary of the feasible commensurate with sound policies mammals and marine mammal products, ex­ Senate from funds appropriated for the Of­ of resource management and that the pri­ cept as provided In this Act. fice upon vouchers signed by the Director or, mary objective of their management shOUld (12) The term "take" means to harass, in the event of a vacancy in that Office, the be to achieve an optimum sustainable popu­ hunt, capture, or klll, or attempt to harass, Acting Director. lation keeping in mind the optimum carry­ hunt, capture, or kill any marine mammal. ing capacity of the habitat and the health (13) The term "United States" includes Mr. MONDALE. Mr. President, I move and stabllity of the marine ecosystem. the several States, the District of Columbia,