February 8, 1972
Page 3042
By Mr. MUSKIE (for himself and Mr. GURNEY)
S. 3141. A bill to amend the intergovernmental Personnel Act of 1970 to provide for the employment of younger citizens of States and local governments as a means of increasing administrative, technical, and professional skills available to local and State governments, thereby strengthening the Federal system. Referred to the Committee on Government Operations.
INTERGOVERNMENTAL PERSONNEL ACT AMENDMENTS OF 1972
Mr. MUSKIE. Mr. President, I introduce for appropriate reference an amendment to the Intergovernmental Personnel Act of 1970. Senator GURNEY, who is ranking minority member of the Subcommittee on Intergovernmental Relations, joins me in sponsoring this measure. I ask unanimous consent that the bill and a cost estimate of these amendments be included in the RECORD at the conclusion of these remarks.
The Intergovernmental Personnel Act expressed the conviction of Congress that strong State and local governments are essential to the federal system. Through that act, the Federal Government helps State and local governments strengthen their personnel by training, education and related programs.
This amendment adds a new ingredient. It will bring outstanding young Americans into State and local governments.
The measure creates a Federal-State Fellows program and a Federal-Urban Fellows program. The Civil Service Commission administers both, though they differ slightly in structure. Both are aimed at bringing talented young people from a variety of ethnic and occupational backgrounds into government service for a year. The Federal, State, and local governments share the cost.
The creation of these national programs of Federal-State Fellows and Federal-Urban Fellows is neither complicated nor expensive. Yet they have a most important purpose – to join an underutilized national resource with an obvious, serious national need. The need is for additional talented and committed people to help State and local governments face problems that are ever increasing both in scope and complexity. The resource is a generation of Americans whose energies and talents are demonstrably great.
This measure encourages local governments to reach out toward talented young people. It will attract them to careers in government services; it will give them the opportunity to acquire a commitment to better government and public service, whatever their ultimate careers.
The Federal-State Fellows program is patterned after the highly successful White House Fellows Program which began in 1964. Under it, exceptional young Americans from outside government are chosen in a nationwide competition and join the Federal Government for a year. They serve as assistants to members of the President's Cabinet and other top officials. After their year in Washington, some have remained in government service. Many have returned to the government for short periods to carry out important special assignments. Virtually all have become deeply involved in the civic or governmental process in their home states and communities.
The proposed Federal-State Fellows program creates a program similar to the White House Fellows for every State interested in participating. The Federal Government contributes three-fourths of the cost the first year, with its share dropping to no more than one-half by the third year. The Civil Service Commission makes grants to each State which then selects outstanding young people to serve for a year in the State government. Recruiting, selection, and program administration would be done on State-by-State basis.
Guidelines will be general, stressing excellence and the nonpartisan nature of the program. Selection should be competitive and service would normally be in both executive and legislative branches. The Council of State Governments will act as adviser to the Commission.
The Federal-Urban Fellows program would also bring outstanding young people into government service for a year – in this case, into city and urban county governments.
Urban governments are numerous and diverse. Because of this, it is my view that this program would be most effective if administered on a national basis by a central organization. The most effective arrangement, at this stage, would be for the Commission to contract for administration of the program with the National League of Cities/Conference of Mayors, which already has a program functioning successfully called the National Urban Fellows program.
The National Urban Fellows began in 1969. Young men and women from many professions are selected in national competition to serve in key positions in city and urban county governments. They undergo a 10-month internship and supplementary academic training which equip them for high level administrative, technical, and professional positions in local governments.
An expansion of this concept into the proposed Federal Urban Fellows program would multiply the number of young administrators and professionals with first-hand knowledge of the tremendous challenges facing urban governments in America today. It would enlarge the pool of talent available to meet these challenges.
This legislation recognizes that various cities and States will devise imaginative programs which could supplement the fellowship programs in achieving their basic objectives. Therefore, it contains a provision in this measure for supplementary programs. The State of Ohio, for example, has a successful summer intern program for young people. New York and other cities have urban fellows programs. The Civil Service Commission is authorized to make grants to such existing efforts, when they would serve as imaginative complements to the measure's two primary programs.
If the programs outlined in this legislation are fully utilized, they will cost some $10 million a year. It will be well spent, and I recommend that funding be provided the Civil Service Commission to cover this new program.
One aim of this measure is, of course, long range: It will provide for the gradual development of valuable new personnel resources for State and local governments. But I believe that there will be an immediate return: When the most talented of our young citizens are placed in positions of responsibility, one of the natural outcomes is the development of needed new approaches and ideas. The young do not have a monopoly on prescience; but in a world where we must accept dazzlingly rapid change as a fact of life, we need not only their energy but their insights.
There being no objection, the bill and estimates were ordered to be printed in the RECORD, as follows:
S. 3141
A bill, to amend the Intergovernmental Personnel Act of 1970 to provide for the employment of younger citizens of States and local governments as a means of increasing administrative, technical and professional skills available to local and State governments, thereby strengthening the Federal System.
Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That this Act may be cited as the "Intergovernmental Personnel Act Amendments of 1972".
SEC. 2. Section 2 of the Intergovernmental Personnel Act of 1970 is amended by adding at the end thereof the following new paragraph:
"That the commitment, imagination, energy, and skills of younger citizens constitute an available source of talent that should be broadly utilized in the strengthening of personnel resources available to State and local governments, thereby strengthening the Federal system."
SEC. 3. Title III of the Intergovernmental Personnel Act of 1970 is amended
(1) by striking out
"TITLE III – TRAINING AND DEVELOPING STATE AND LOCAL EMPLOYEES" and inserting in lieu thereof
"TITLE III – STATE AND LOCAL GOVERNMENT EMPLOYMENT
"PART A – TRAINING AND DEVELOPMENT" (2) by striking out of section 301 the word "title" and inserting in lieu thereof "part"; and (3) by adding at the end thereof the following new part:
"PART B – DEVELOPING ADDITIONAL EMPLOYEE RESOURCES
"SEC. 321. The purpose of this part is to develop additional employee resources for State and local governments and simultaneously to create new avenues of Federal, State, and local government service for younger citizens of the United States by establishing programs of Federal-State Fellows and Federal-Urban Fellows, and by authorizing support for related supplementary programs.
"DEFINITION
"SEC, 322. For the purpose of this part, 'organization' means
"(1) a national, regional, statewide, areawide, or metropolitan organization, representing member State or local governments;
"(2) an association of State or local public officials; or
"(3) a nonprofit organization, one of whose principal functions is to offer professional advisory, research, development, educational, or related services to governments.
"FEDERAL-STATE FELLOWS
"SEC. 323. (a) The Commission, or an organization designated by it, is authorized to make grants to a State to establish, develop and carry out a Federal-State Fellows program for that State. Each State program shall provide opportunities for learning and service in other work of State governments by younger citizens of the United States of diverse backgrounds. Each such program shall–
"(1) emphasize the development of a group of informed and experienced citizens who, following their internship as Fellows, may subsequently be available to State governments, and also to Federal and local governments, for career employment or special periodic service.
"(2) provide for the appointment of Fellows from among outstanding young citizens at least 21 years of age;
"(3) be administered on a non-partisan basis and
"(4) provide for carrying out such programs by a State agency designated by the Governor or chief executive authority of the State or pursuant to an agreement with an organization (unless State law otherwise prohibits such an agreement).
"(b) The Council of State Governments shall be designated as adviser–
"(1) to the States, with respect to the development of appropriate qualifications, standards, and methods of selection of Fellows; and
"(2) to the Commission, with respect to the development of criteria for awarding grants to States.
"(c) Grants to a State Shall be for not to exceed 75 per centum (or, with respect to fiscal years commencing after the expiration of three years following the date of enactment of this part, up to 50 per centum) of the costs of such program of that State, including–
"(1) costs of stipends of not to exceed 10 Fellows per State a year;
"(2) administrative costs; and
"(3) related expenses as may be authorized by the Commission.
"(d) Each State shall agree to be responsible for the non-Federal share of the costs of its program. The State agency or the organization administering the Federal-State Fellows program for the State may seek public or private funds to pay for the non-Federal share of the cost of its program and for educational activities designed to supplement or complement the work-service experience of Fellows.
"(e) For costs incurred in connection with its advisory role, the Council of State Governments shall be reimbursed by the Commission, out of appropriations made pursuant to this Act, in such amounts as may be determined by the Commission.
"FEDERAL URBAN FELLOWS
"SEC, 324. (a) The Commission is authorized to establish, develop, and carry out a Federal Urban Fellows program which shall provide opportunities for learning and meaningful participation in the functioning of local government. Such program shall–
"(1) recognize the common national implications of local problems and seek to build a coordinated national personnel resource for local governments;
"(2) provide for the appointment of Fellows from among outstanding young persons, 20 through 39 years of age, representing a variety of ethnic groups and occupational backgrounds, including the appointment of such persons from volunteer programs and community service organizations, and with business, labor, medical, teaching, community action, and other kinds of experience relevant to the needs of local governments; and
"(3) provide for the assignment of Fellows, by agreements with a local government, or a local governmental or non-governmental agency, designated by the mayor or chief executive authority of the local government.
"(b) Except as otherwise provided in subsection (c) of this section, the Commission shall enter into an agreement with an organization or another Federal agency to carry out such program for the Commission. If the Commission enters into such an agreement, it is authorized to reimburse such organization or agency for stipends for the Fellows and administrative and other costs determined by the Commission to be related to carrying out such program. In no event, however, shall the Commission reimburse any such organization or agency for more than 75 per centum (or, with respect to fiscal years commencing after the expiration of three years following the date of enactment of this part, up to 50 per centum) of the total amount of stipends for five Fellows to each local government or non-governmental agency each year.
"(c) If the Commission determines it is not practicable to have an organization or other Federal agency carry out such program, the Commission is authorized to carry out such program by making grants directly to a local government or to a local governmental or non-governmental agency (designated by the mayor or chief executive authority of the local government) to establish, develop, and carry out Federal Urban Fellows programs of that government or agency. Any such grant shall not exceed 75 per centum (or, with respect to fiscal years commencing after the expiration of three years following the date of enactment of this part, up to 50 per centum) of (1) the costs of each such program of that local government or agency (including administrative costs and other costs authorized by the Commission to be paid out of the grants), and (2) the total amount of stipends for more than five Fellows to that government or agency each year.
"(d) Each such local government or agency shall agree to be responsible (1) in the case of Fellows provided by an organization or Federal agency under subsection (b) of this section, for that portion of the total amount of the stipends for Fellows provided that local government or agency and not reimbursed by the Commission, or (2) in the case of a grant directly to that government or agency under subsection (c) of this section, for the non-Federal share of the costs of its program. "(e) The local government or agency may seek public or private funds to pay the non-Federal share of the amounts of the stipends for Fellows provided under subsection (b) of this section; or its program under subsection (c) of this section.
"SUPPLEMENTAL PROGRAMS
"SEC. 325. (a) The Commission is authorized to make grants to States, general local governments or combinations of governments that serve fifty thousand or more persons, or other organizations, for support of additional programs which, as determined by the Commission
"(1) are consistent with the provisions of subsection (a) of Section 323 and subsection (a) of section 324 of this Act;
"(2) do not duplicate programs established under such sections;
"(3) constitute imaginative complements to those programs; and
"(4) in the case of programs proposed by organizations, have the endorsement of the appropriate State or local governments.
"(b) Grants may provide up to 75 per centum (or, with respect to fiscal years commencing after the expiration of three years following the date of enactment of this part, for up to 50 per centum) of the costs of such programs, as determined to be appropriate by the Commission, including stipends and administrative costs."
ESTIMATE OF FUNDS NEEDED FOR INTERGOVERNMENTAL PERSONNEL ACT AMENDMENTS OF 1972
Attracting persons to an internship who have the talent to be in demand elsewhere and who have administrative, technical, and professional skills requires a stipend in the range of $10,000 to $15,000 per year. The experience of similar programs suggests the following budget approximation for a program of 1000 fellows:
500 Federal-State Fellows average stipend $12,500/year ----- $6,250,000
500 Federal-Urban Fellows average stipend $12,500/year ----- $6,250, 000
Supplemental Programs --------------------------------------------- 1,000,000
13,000,000
Administrative costs, educational expense, advisory committee --------------------- 5,000,000
Total annual cost ----------- 18, 000, 000
Federal share----------------- 13,500,000
State and local share---------- 4,500,000
PROJECT FEDERAL EXPENDITURES
1st year-start up: 300 state, 300 Urban Fellows, no supplemental programs ---------- 10,500,000
2d year: 500 State, 500 Urban Fellows, supplemental programs ------------------------ 13,500,000
3d year: 500 State, 500 Urban Fellows, supplemental programs ------------------------ 13,500,000
4th year: (50 % Federal share) ----------------------------------------------------------------- 9,000,000
5th and subsequent years: (50% Federal share) --------------------------------------------- 9,000,000
Mr. GURNEY. Mr. President, I am pleased to cosponsor the Intergovernmental Personnel Act Amendments of 1972 introduced today by Senator MUSKIE. This legislation will provide for the training and involvement of young people in State and local government through a Federal fellowship program.
We hear from young people throughout our Nation an increasingly serious criticism of our governmental institutions and the ability of these institutions to respond to the people whom they serve. Too often, these criticisms are rooted in ignorance of the actual operations of governmental bodies and agencies; also, too often, there is legitimate basis for such accusations.
This legislation will serve to familiarize hundreds of our Nation's brightest, most talented young people with the day-to-day problems and activities of State and local government. All who participate in it will share an opportunity for increased knowledge and respect for the realities of government; some will choose careers in government and remain to change and improve the very institutions from which they have learned.
The program will operate through two types of fellowship plans: the Federal State Fellows and the Federal Urban Fellows. Overall administration would be through the Civil Service Commission, with each State administering its individual program for fellowships in State government; and with a contracting agency or organization such as the National Urban Fellows program of the National League of Cities and Conference of Mayors, administering the fellowships in local governments.
The program will be financed on a 50-percent matching basis, with the Federal share of the costs less than $9 million annually, following slightly higher start-up costs of the first 3 years.
Mr. President, I speak as a fiscal conservative when I say I believe this program to be a wise investment in the future of our country. It would be irresponsible to ignore the proper education and preparation of youths who will be tomorrow's leaders in our society and government.