Despite the large number of programs, however, the real usefulness of such sources is limited in ways which were emphatically described by a witness 17 at one of the AoĂ hearings: Another area of concern regarding elderly transportation programs revolves around the maze of Federal programs directed to the same end, but utilizing different means. There is a need to coordinate the multiplicity of Federal programs dealing with transportation for the elderly to prevent duplication and insure a uniformity in purpose and objective. In preparing transportation programs for the elderly one must consider: Title III, IV, VII and IX of the Older Americans Act of 1965, as amended; Titles VI and XX of the Social Security Act of 1935, as amended; Sections 3, 6, 9 and 16 (b) (2) of the Urban Mass Transportation Act of 1964, as amended; Section 147 of the Federal Aid Highway Act of 1973, as amended; appropriate sections, including Section 5, of the National Mass Transportation Assistance Act of 1974, and Title II of the Economic Opportunity Act of 1964, as amended; and of the State and Local Assistance Act (revenue sharing) of 1972. Mr. Levi concluded his remarks by stating that if there is a real desire on the part of the Federal government to achieve maximum coordination of transportation programs on a local level, there should be a Federal commitment to adopting a coordinative approach for implementation of its programs. The "State of the Art" study said (p. 120) that really important funding for older Americans transportation projects have been provided only under Titles III and VII of the Older Americans Act and Title VI and XIX under the Social Security Act. It added: It would appear that if at least the transportation funds from these four programs could be pooled, an ongoing coordinated, comprehensive network of transportation services for the elderly could be developed; funds tapped from any of the other programs listed in Table III-2 would serve to expand the transportation services that could be provided to older people. However, conflicting statutory and regulatory provisions governing the various programs which have transportation components that could be coordinated, or which could provide sources for the pooling of their respective transportation funds, tend to restrict coordination, make pooling virtually impossible, and work against continuity. FINDINGS AND CONCLUSIONS Legislative enactments and a Baltimore agreement on issues raised in a suit there have further committed Federal resources to the development or maintenance of adequate transportation systems for older Americans. 17 Mr. Peter Levi, Deputy Director of the Mid-America Regional Council, in Kansas City, Mo. Additional action is now required within the Department of Transportation to clarify its working relationship with the Administration on Aging and-in particular-to take an affirmative and effective stance in implementing section 16(b)(2). The Administration on Aging is due to present recommendations to the Congress in the near future on meeting the Federal commitment in this area. This committee will await those recommendations with interest and will continue its own close scrutiny of transportation issues affecting older Americans. CHAPTER X VOLUNTEER AND COMMUNITY SERVICE BY THE ELDERLY Retirement is a difficult adjustment for most persons. And at times it can be the most difficult adjustment an individual must make in a lifetime. In our work-oriented society today, far too many older Americans are uneasy about the "shock of retirement" or the "threat of leisure." To them, old age means neglect, despair, and deprivation. Yet, advancing age can and should provide new opportunities for activities or service and continued self-development. It can also mean a rewarding second career. Congress has authorized several new volunteer and community service employment programs-including Foster Grandparents, RSVP, Mainstream, and the Senior Community Service Employment program-in recent years to make the later years more purposeful, rewarding, and fulfilling. In practically every case, these activities have been enthusiastically endorsed by elderly participants and those served under the programs. But despite the great need to step up these efforts, developments in 1974 and administrative actions early in 1975 threatened to terminate or stifle volunteer and community service employment programs for older Americans. I. OPERATION MAINSTREAM AND TITLE IX: THE STRUGGLE CONTINUES 1 Operation Mainstream was created in 1965 as a part of the Economic Opportunity Act Amendments to provide public service job opportunities for low-income persons who would otherwise have difficulty in obtaining employment. Green Thumb, administered by the National Farmers Union, was the first older workers program. It was launched in 1966. Contracts were later awarded to National Council of Senior Citizens (Senior Aides), National Council on the Aging (Senior Community Service Program), National Retired Teachers Association-American Association of Retired Persons (Senior Community Service Aides), and the U.S. Forest Service. By any objective measurement one would choose to use, the Mainstream pilot projects have amply demonstrated the soundness of the concept of community service employment for the elderly participants 1 Public Law 89-253, Economic Opportunity Amendments of 1965, approved October 9, 1965. 2 Authority for Mainstream is now under Title III (Special Federal Responsibilities) of the Comprehensive Employment and Training Act, Public Law 93-203, approved December 28, 1973. and the localities served. This excellent track record provided the basis for Senator Edward Kennedy's proposal in 19703 to create a national senior service corps. After a struggle spanning 3 years, the Older American Community Service Employment Act became law with a 2-year funding authorization of $160 million. In enacting this legislation, the Congress emphasized that the national contractors should have an important role in administering the title IX Older American Community Service Employment Act. The Senate Labor and Public Welfare Committee report said: National organizations such as those previously named, that have acted as sponsors of the Mainstream projects would continue to be eligible to participate. In view of the success that has been achieved under the pilot program the committee is hopeful that there will be continued participation by these organizations.5 To a very large degree, this judgment was based upon the highly favorable independent evaluations of the national contractors. Kirschner Associates, Inc., gave this assessment: However, it has been demonstrated consistently in OM [Operation Mainstream] that by any standard the overall administration and operation of the program has been most effective when the national contractors are involved. . . . It is also apparent that the particular national contractors involved are appropriate for the program and have demonstrated a capability to administer effectively to the needs of both older enrollees and communities served. Thus, it is recommended that: The proposed older worker program be continued to operate under the direction of NCSC, NCOA, NRTA, and the National Farmers Union." A. SOME LIMITED VICTORIES From the very beginning the administration has resisted the establishment of a national senior service corps-in large part because of its opposition to "categorical" employment programs for older. workers. The administration, for example, has never once requested any funds for title IX, although $60 million was authorized for fiscal 1974 and $100 million for fiscal 1975. Only because of congressional insistence has the program been kept alive by appropriations of $10 million for fiscal 1974 and $12 million for fiscal 1975.8 7 3 S. 3604 (Older American Community Service Employment Act), 91st Cong., 2d Sess. 4 Public Law 93-29, approved May 3, 1973. Senate Report 93-19, "Older Americans Comprehensive Services Amendments of 1973." Senate Report 93-19 to accompany S. 50, Older Americans Comprehensive Services Amendments, Senate Committee on Labor and Public Welfare, 93d Cong., 1st Sess., February 14, 1973, p. 21. "Final Report: National Evaluation of Operation Mainstream, A Public Service Employ. ment Program," Kirschner Associates, Inc., December 1971, pp. 157-8. Public Law 93-245, Supplemental Appropriations Act for fiscal year 1974, approved January 3, 1974. 8 Public Law 93-517, Labor-HEW Appropriations Act for fiscal year 1975, approved December 7, 1975. TITLE IX.-Enrollment positions (as of February 1975) Sponsor and dates of contract or grant Green Thumb, Inc., June 28, 1974 to June 27, 1975. National Council on the Aging, June 28, 1974 to June 27, 1975- Enrollment 1, 331 353 National Council of Senior Citizens, June 28, 1974 to June 27, 1975- Persons, June 28, 1974 to June 27, 1975--- U.S. Forest Service, June 28, 1974 to June 27, 1975_ Delaware, July 1, 1974 to June 30, 1975_. Hawaii, July 1, 1974 to June 30, 1975_ 743 636 268 10 30 32 10 9 19 8 3, 449 Samoa, July 1, 1974 to June 30, 1975. Guam, July 1, 1974 to June 30, 1975_ Trust Territories of Pacific Islands, July 1, 1974 to June 30, 1975- Total Source: Department of Labor. Today the program provides nearly 3,450 enrollment positions for older workers in a wide variety of community service activities. Another point of contention between the Congress and the executive branch is the role of the national contractors in administering the program. Consistent with its emphasis on manpower revenue sharing, the Department of Labor opted for administration through State and local governments, with no direct role for the national contractors— except through applications on a State-by-State or locality-by-locality basis under the Comprehensive Employment and Training Act. The Congress, on the other hand, has repeatedly called for a categorical program because older workers have been grossly under-represented in general manpower programs. During the first quarter in 1975, persons 55 and over accounted for only 2.7 percent of all individuals served under the Title I comprehensive manpower programs of CETA. For the title II public service employment program, individuals in the 55-plus age category constituted 5.2 percent of the participants. The Congress has also stressed that national contractors should have a major role in administering title IX because of their specialized expertise and excellent record in conducting employment programs for older Americans. However, the administration notified the national contractors on March 5, 1974, that the title IX program be administered through prime sponsors. Thus, it was necessary for the Congress to reaffirm "that the program be administered primarily through national contracts." The administration relented and awarded 1-year contracts (to begin on June 27, 1974) to Green Thumb Inc., National Council on the Aging, National Council of Senior Citizens, National Retired Teachers Association-American Association of Retired Persons, and the U.S. Forest Service. B. RESCISSION The administration adopted another thrust-after losing on issues involving appropriations and the role of the national contractors. 9 House Report 93-1070 to accompany H.R. 14013, Making Supplemental Appropriations. Conference Report, 93d Cong., 2nd Sess., May 29, 1974, p. 13. |