Mandating National Service: A Legislative Proposal
Prepared for
David Wade
The Chief of Staff,
Office of Senator John F. Kerry
May 10, 2012
Memorandum
To: Mr. David Wade
Date: May 10, 2012
Re: Proposal for Mandatory National Service
Dear Sir,
I truly appreciate the time you have allocated me to present the following proposal.
As a legislative intern in the Office of Senator Kerry, I have worked with several
Legislative Correspondents and Legislative Assistants on topics ranging from
departmental budgets to the impact of Zebra mussels on our waterways; however, no
topic has piqued my interest as much as national service.
In conducting the research for this proposal, I examined various national service
programs in our nation’s history, as well as those currently in place throughout the
world. To obtain qualitative information on these programs, various foreign nationals
and American citizens who have participated in them provided honest opinions through
phone interviews, face-to-face meetings, and email exchanges. Without their candor,
this proposal would not have been possible.
Many of my peers, both in and out of the Senator’s Office, provided invaluable input in
refining the survey I distributed to gauge the public’s opinion of implementing national
service today. Their participation, along with research tools provided by the University of
Maryland, College Park, allowed me to quantitatively analyze the proposal’s feasibility.
Although current legislation incentivizes participation in national service, mandating
service for all 18 year olds would do more than simply augment their leadership and
communication skills – a national service mandate would provide the United States with
the workforce needed to reinforce the sectors that will contribute to an economic
recovery.
Please do not hesitate to contact me with any questions you may have. Additionally, I
am on hand to present this proposal verbally at any time.
Sincerely,
CONTENTS
PAGE
List of Illustrations………………………………………………………………………………iv
Executive Summary…………..…………………………………………………………………v
Introduction……………………..………………………………………………………………..1
1. Successes in National Service Abroad…………………………………………………….3
Israel……………………………………………………………………………………...3
Switzerland……………………………………………………………………………...6
2. Failures in National Service Abroad……………………………………………………….8
Russia……………………………………………………………………….…………..8
3. National Service in the United States………………………………………………….....10
Works Progress Administration (WPA)……………………………………………...10
Civilian Conservation Corps (CCC)………………………………………………….11
The Legacy of the WPA and CCC…………………………………………………...12
4. The Feasibility and Benefits of a National Service Mandate……………...…………...13
Public Opinion…………………………………………………………………………13
A Cost-Benefit Analysis………………………………………………………………14
Intangible Benefits…………………………………………………………………….15
Conclusion……………………………………………………………………………………..16
iii
LIST OF ILLUSTRATIONS
Figures
Page
1. William James………………………………………………………………………...…1
2. Yigal Ariha with Students…………………………………………………………...….3
3. Tom Aharon…………………………………………………………………………...…4
4. Yaakov Cohen…………………………………………………………………………...5
5. Language Map of Switzerland…………………………………………………………6
6. Tristan Bidy at His Place of Service…………………………………………………..7
7. Hazing of Russian Conscripts………………………………………………………...9
8. Mural Painted by WPA-employed Artists in a Community Center………………..10
9. CCC Workers Clearing Land…………………………………………………………11
10. AmeriCorps Logo……………………………………………………………………...13
Tables
Page
1. “History of the Dollar Value of a Volunteer Hour: 1980-2011" …………………..15
iv
Executive Summary
Drawing upon the success of service programs in this country and successful programs
abroad, this proposal provides a framework for a national service initiative that utilizes
pre-existing resources on a larger scale.
The Need for Community Service on a National Scale
Today we encourage our youth to achieve from an early age; however, in aspiring to
greatness, the value of giving back to the community often falls by the wayside. Given
the current condition of the economy, large-scale service in our communities is not only
commendable, but also critical to facilitating a recovery.
Building on an Existing Legislative Foundation
The National Community Service Trust Act of 1993 and the Edward M. Kennedy Serve
America Act of 2003 provide a foundation for widespread national service in the United
States. By introducing a mandate for all 18 year olds to participate in a national service
program, Congress will effect widespread positive changes in our nation’s communities.
The Benefits of National Service
If properly implemented, national service will improve the lives not only of those served,
but also of those serving. By providing financial compensation in the form of
scholarships for higher education and trade schools, the federal government will ensure
that the next generations of Americans to enter the workforce will be more educated
than ever before. Furthermore, the improved soft skills of those who participate, along
with the better understating of their peers from other backgrounds gained through
teamwork, will contribute to a more harmonious and productive society.
v
Introduction
A preeminent American philosopher and psychologist, William
James is best known today for his authorship of Principles of
Psychology in 1890; however, lesser known but equally relevant
are James’s philosophical writings on the subject of the economy
as it relates to war. Although he died in 1910, four years before
the start of World War I, James correctly predicted the
belligerency for “loot and glory,” first by Germany, and then by
Figure 1: William James
Germany and Japan 21 years later (James). In his speech-turnedessay “The Moral Equivalent of War,” James explains that when young men confront an
enemy on the battlefield, they gain a mutual respect for each other, developing a
“totality of virtues… fidelity, cohesiveness, tenacity, heroism, conscience, education,
inventiveness, economy, wealth, physical health and vigor;” conversely, he outlines the
ever-increasing costs of war, in both financial and human terms (James).
While the prosperity experienced after the return of American soldiers from the
battlefields of World War II demonstrates the validity of James’s first assertion, the toll
taken on our nation by the Wars in Iraq and Afghanistan is explicit evidence of the
existence of the second phenomenon he describes. In simple economic terms, the
opportunity cost of war is much greater than its benefits. Therefore, James predicts the
eventual transition from the “pain-and-fear economy” of war to an economy of peace;
however, for a peace economy to be successful on a permanent basis, it must not
1
simply be a “pleasure-economy” where some individuals pursue their own fulfillment
while others pay the price (James). To prevent the failure of a peacetime economy
because of this effect, James champions “a conscription of the whole youthful
population to form… the army enlisted against Nature” (James). Thus, youth may be
instilled with the values to make them “better fathers and teachers of the next
generations” by fighting against social injustice instead of each other (James).
As our nation’s economy remains in crisis after four years of all-out efforts to facilitate a
recovery, many organizations have had to reduce the services they provide to our
communities at a time when we need them most. In Massachusetts alone, $1.9 billion
was cut from crucial services such as housing, healthcare and education in the 2012
budget (SWM Committee Executive Summary). Without a volunteer force to combat
the impact of these cuts in services, our communities will continue to suffer; however,
by mandating national service, we may ease the distress of those in need while
facilitating an economic recovery. The success of the national service programs of
Israel and Switzerland, the failure of Russia’s, as well as the lessons learned through
the Works Progress Administration (WPA) and the Civilian Conservation Corps (CCC),
provide precedents upon which to model a national service program of our own.
2
1. Successes in National Service Abroad
A. Israel
Much like the United States, Israel is a country of immigrants and refugees. From its
founding in 1948, the small nation has struggled with internal strife as well as with its
Arab neighbors. The country’s internal discord stemmed from friction between the
multiple immigrant communities as they assimilated into Israeli society (History: State of
Israel). Despite these tensions, Israel flourished, socially and economically, and its GDP
per capita is now comparable to that of the European Union and South Korea (Country
Comparison – GDP Per Capita). Yigal Ariha, who served as a mentor to at-risk youth
during his three years of national service, attributes Israel’s success to the cohesive
bonds formed between members of all classes and backgrounds during their service
together. “You quickly learn that what matters is if you can count on a person - not
where they’re from,” Ariha wrote in an email (Questions about your IDF Service).
Initially, Ariha had wanted to be a paratrooper in the army, but he injured his knees
during training. Despondent, he threw
himself into the next available position he
found. This decision changed Ariha’s life,
as his time spent mentoring inspired him to
pursue a degree in education. Yigal Ariha
now works as a high school principal in a
Figure 2: Yigal Ariha (Left) With Students
low-income neighborhood. “I realized I was
changing lives – no, saving lives. After that realization, I just couldn’t stop what I was
doing and become a businessman” (Questions about your IDF Service).
3
The opportunity to pursue one’s interests while serving his or her community was a
facet of national service also appreciated by Tom Aharon, age 22, who just finished his
service with the Israeli Defense Force’s (IDF) Spokesperson Unit in the capacity of a
film editor. “In most of the world, you go to school, maybe work a little, and then go to
find a job with minimal
experience. I haven’t even gone
to film school yet, but I’ve already
been trained and worked for two
years doing what I want to do”
Aharon said in an interview over
SkypeTM (Aharon). Conversely,
many of his friends thought they
wanted to pursue careers in a
Figure 3: Tom Aharon (Third from Right)
certain field, but changed their minds after service. “Now we are entering university
more mature and also knowing where we want to be once we finish” (Aharon).
Although Israel’s national service program initially entailed military service for men and
community service for women, pressure from the public has resulted in the gradual
opening of opportunities in the military and civilian sectors for men and women. Once
controversial, men and women can now serve together in frontline combat units. Today,
women constitute 25% of all officers in the Israeli military, while more men are taking
4
non-combatant or civilian roles; however, many still complain of unequal opportunities
for women in national service, which causes setbacks in professional development once
their service is complete (Izraeli).
The allure of serving in a foreign military defending a small Middle-Eastern democracy
attracts many outsiders. Yaakov Cohen, currently a student at the University of
Maryland, grew up in the United States, moving to Israel for 18 months to serve in the
IDF. His experiences overseas made him “a more effective, responsible person”
(Cohen). Cohen spoke of one particular exercise during his training, a night march with
weighted packs. “It was then that I learned what it meant to be a leader. You need to be
able to follow and understand everyone around you and then you can lead” (Cohen).
Experiences like Cohen’s are attributed to
developing Israel’s unparalleled entrepreneurial
spirit. In 2008, the country’s start-ups garnered an
estimated $2 billion in venture capital, more than
Great Britain, France, and Germany combined
Figure 4: Yaakov Cohen
(Rosen). Oftentimes, those successful in the
private sector build their companies around people met during national service (Izraeli).
5
B. Switzerland
Renowned for its neutrality and participation in international affairs, Switzerland is
composed of 26 cantons,
with residents of each
participating in the direct
election of government
officials. To further
complicate its political
situation, Switzerland
Figure 5: Language Map of Switzerland
recognizes German, French,
Italian, and Romansch all as national languages. Despite these internal divisions,
Switzerland ranks equally with the United States in terms of GDP per capita, while
maintaining low unemployment rates and very high literacy rates (Country Comparison
– GDP Per Capita). This prosperity is attributed in part to national service developing a
“national identity” in each successive generation (Haarto). Traditionally limited to military
service for men, the Swiss national service system has recently created opportunities
for female volunteers and places both sexes in community service-type positions. The
Swiss News Channel recently interviewed several young men who chose community
service over the military.
Nathanael Bonvin performed two weeks of military service, but switched to a position as
a driver for the disabled. While he felt his time spent in barracks was “a waste,” Bonvin
6
now feels like “very, very useful” part of the community (Swissinfo). Choosing
community service despite criticism from his friends that he was passing up the
opportunity “to become a man,” Tristan Bridy believes that working in a local shelter
“helps more with [his] professional life” (Swissinfo). Yannick Favre and Michael Lugon
both objected to serving in the military on
moral grounds, but they were contented by
the opportunity to work for their country in a
civilian capacity (Swissinfo).
Figure 6: Tristan Bidy at His Place of Service
As the Head of Civilian Service, Frederic In-Albon noted that recently “requests [to
perform civilian service] have exceeded the most optimistic expectations” (Swissinfo).
The “explosion” of volunteers for community service in Switzerland has allowed local
organizations that relied on part-time workers in the past to expand their services.
Simon Eggs, an administrator of the “Transport Handicap” organization with which
Bonvin volunteers, stated that Bonvin and his peers are “very important” to the success
of daily operations (Swissinfo). Even the mayor of the town of Emmaus, Vincent Proton,
submitted a statement to the local news, praising national volunteers for helping local
authorities accomplish projects “that would’ve otherwise been impossible” (Swissinfo).
The surge in the popularity of community service over military service has occurred
much to the chagrin of military commanders. For the past decade, the military has
7
benefitted from “the experience, knowledge and skill set” of young professionals who
remain in the reserves following their service (Haarto). This helps cut costs by reducing
the number of third party contractors hired and provides the professionals with extra
experience and training that can be applied in the workplace; however, Bonvin’s
testimony seems to discount the concerns over lack of professional development.
Further indicative of the community service program’s success is the rate of applications
increasing by more than the number of positions available. This phenomenon has
occurred despite a penalty of extra time imposed for not participating in the military
(Haarto). Thus, the example of Switzerland’s recent initiative demonstrates the value
and popularity of non-military service among young people.
2. Failures in National Service Abroad
A. Russia
Despite a tradition of national service dating back to the time of the tsars, Russia serves
as the epitome of a failed program. Although community service options exist on paper,
Russia’s national service initiative is effectively a males-only draft into the military. The
unpopularity of the war in Chechnya, combined with the inability of conscripts to choose
a specialization, has led to “thousands of young men” illegally avoiding service (Bigg).
One young man stated, “The Russian army, in its current form, isn’t a professional
one… That’s why I simply refuse to be another cog in the machine” (Biggs). Frequent
raids by the authorities to catch objectors in places frequented by young people only
further demoralize that demographic. The general population’s unwillingness to
8
participate in national service has resulted in the military looking elsewhere for
manpower, with more than 50% of its members having served criminal sentences in
prison.
For those who do enter national service in Russia, their two years in the military are
likened to time in prison (Bigg). In 2009, 149 conscripts were reported to have
committed suicide; however, Human Rights Watch suspects this number was inflated to
include new recruits killed during hazing (Karmodi). With certain units controlled by
members of ethnic groups,
outsiders who join these units are
subjected to “grossly abusive and
humiliating treatment” (Bigg). Rather
than facilitate cohesiveness, the
persistence of this phenomenon
foments national discord and
Figure 7: Hazing of Russian Conscripts
ethnocentrism.
Corruption, especially rampant in the Russian officer corps, results in the inaction of
those with the power to curb the abuse of conscripts. Not only do officers turn a blind
eye to the brutal hazing of new recruits, but they “often send soldiers to work at
construction sites and pocket all the money they earn” (Karmodi). In one unit, a
commander threatened to deal with any concerns by “smashing in…the nose” of the
9
complainer (Karmodi). As the result of its infamous reputation, President Yeltsin visited
this unit. Pending his arrival, the unit’s officers “hid everyone who had visible bruises in
a cellar for several days, without any food” (Karmodi).
With its rampant abuses of power, lack of flexibility in accommodating the needs of its
participants and failure to self-correct, the Russian national service program
demonstrates the pitfalls of a lack of oversight and the effects of allowing injustices to
reoccur without consequences.
3. National Service in the United States
A. Works Progress Administration (WPA)
As “the largest jobs initiative the United States has ever seen,” the WPA, founded in
1935 under Executive Order 7034, was also the “most attacked and reviled by
Conservatives” who accused the program of wastefulness and excess (Taylor). The
scale of the WPA, $11 billion were spent in project funding from 1935-1943 (in
unadjusted dollars!), was matched only by the scope of these projects. During that time
period, 8,500,000 people were
employed working on
1,410,000 projects across the
United States (More about the
WPA). Ranging from building
Figure 8: Mural Painted by WPA-employed Artists in a Community Center
10
schools to writing guidebooks for tourists, the WPA’s projects allowed educated
workers and artists to hone their skills while upgrading America’s infrastructure, which
had been “mired in the 19th century” (Taylor). By the program’s completion, 651,087
miles of road had been constructed, along with 124,031 bridges, 125,110 public
buildings, 8,192 parks and 853 airports (More about the WPA); however, the WPA’s
projects were not only limited to infrastructure improvement. The WPA also assumed
responsibility for “preparing and serving lunches to low-income schoolchildren” and
staffing daycares (NATIONAL SERVICE). At the program’s height, the WPA employed
20% of the American workforce in conjunction with the Civilian Conservation Corps
(Foster).
B. Civilian Conservation Corps (CCC)
Founded in 1933, President Roosevelt had “to ramrod the program through” despite the
protests of Congress (Foster). Evocative of William James’s vision of an “army enlisted
against Nature,” the CCC employed workers to improve the use of America’s natural
resources (James). For $30 a month,
$25 of which they were required to
send home, the men of the CCC
constructed trails through parkland,
cut firebreaks, and removed invasive
species from native habitats (Foster).
Not only did this program “restore
Figure 9: CCC Workers Clear Land
11
our nation’s parks,” but it also did much to “revitalize the economy” while providing a
way for men to support their families in a dignified way (National Service Timeline).
While working on CCC projects, participants lived in barracks-style housing and learned
the professional skills necessary to complete the job (Foster).
The CCC left a lasting impact on many communities across the nation, with a local
example of its work found in the two bridges crossing the Cape Cod Canal. Not only is
the CCC “responsible for the park system we have today,” but its camps formed nuclei
of innovation and camaraderie (Foster). Furthermore, the CCC camps in the New
England area were unique in being racially integrated, predating the integration of the
military by 20 years (National Service Timeline).
C. The Legacy of the WPA and CCC
As World War II escalated, the national service programs of the New Deal were
terminated in favor of devoting resources to the war effort; however, national service
was reinstated once again on a more limited basis during the social reform of the
1960’s. Beginning with the formation of the Peace Corps in 1961 by President Kennedy,
the number of federally-administered service programs steadily expanded. President
Kennedy’s dream of “someday…bring[ing] home” the Peace Corps was not realized
until 1993, with the signing of the National and Community Service Trust Act of 1993 by
President Clinton (National Service Timeline). In addition to creating the Corporation for
National and Community service to oversee all relevant programs, this Act established
12
AmeriCorps, a formalized national service organization through which participants
receive “stipends, health insurance, and education awards” while “volunteering for a
year in education, public safety, environmental programs, or human welfare programs”
(NATIONAL SERVICE). By 2004, 330,000 Americans between the ages of 18 and 24
had participated in AmeriCorps (National Service
Timeline). President Obama reaffirmed the
Federal government’s commitment to further
expanding national service programs in signing
the Edward M. Kennedy Serve America Act of
2009 (Edward M. Kennedy Serve America Act of
2009). Although this Act will augment the
funding of AmeriCorps and similar programs, a
Figure 10: AmeriCorps Logo
report published in the Public Administration Review by policy experts at Indiana
University predicts that “national and community service [programs] will continue to
underachieve and fall short of the claims made by advocates” unless drastic measures,
such as a mandate, are passed (Reingold and Lenkowsky).
4. The Feasibility and Benefits of a National Service Mandate
A. Public Opinion
In a poll of 226 students at the University of Maryland, College Park, 47% of those aged
18-20 were not in favor of a national service mandate. An additional 24% of those polled
were neutral (Author). If the sentiment of this sample is similar to that of the same age
13
group nationwide, a national service mandate can be expected to be widely unpopular,
at least in its early stages of implementation. The parents of those obligated to perform
national service may also be opposed to a mandate; however, opposition may be
expected to lessen as the benefits of widespread national service are realized. Most
interestingly, in the same survey that reported widespread resistance to a national
service, 73% of students indicated that, if mandated, they would be willing to perform 3
months of national service at the age of 18 (Author). If this were to occur, the marked
benefit to their respective communities may further convince those serving of the value
of their service.
B. A Cost-Benefit Analysis
According to data obtained by the Corporation for National and Community Service,
young people aged 16-24 performed an average of 40 hours of service between 2008
and 2010 (Volunteering in America). If this same demographic were to perform 3
months of national service, 480 hours of service would be donated by each individual,
assuming a 40 hour workweek. Data from the U.S. Census of 2000 suggests that
approximately 10,000,000 Americans turned 18 in 2010 (Population Change by Age).
Had 3 months of national service been mandated in that year, 4,800,000,000 hours of
service would have been performed. The policy think tank Independent Sector placed
an average national value of $21.36 per hour of service performed in 2010 (Value of
Volunteer Time). Thus, the hours of national service obtained through a mandate in
2010 would have contributed $102,528,000,000 (less program expenses) to the
American economy, or an average of $10,253 per participant. A report by the U.S.
General Accounting Office (GAO) estimated the cost per participant of AmeriCorps was
14
$5,856.50 every 3 months (National Service Programs: Two Americorps Programs'
Funding And Benefits). In just 3 months of nation service, each participant provides an
after-expense value of $4,396.50. In 2010, this would have resulted in an additional
economic stimulus of $43,596,500,000 – all for just 3 months of service.
Table 1: "History of the Dollar Value of a Volunteer Hour: 1980-2011" As Calculated by Independent Sector
C. Intangible Benefits
In addition to inherent economic benefits, a national service mandate would provide
value to American society by encouraging our youth to become leaders and effect
positive change in their communities. Compared to their peers, AmeriCorps alumni felt
significantly more connected to their communities even 8 years after completing service.
AmeriCorps alumni 8 years out of the program were also 13% more likely to have
volunteered in the past year and were 1.2 times more likely to be active within their
communities than their peers (Still Serving: Measuring the Eight-Year Impact of
15
AmeriCorps on Alumni). These measured benefits are augmented by the immeasurable
experience of working with one’s peers to better the community and nation as a whole.
“You think you know how to be a leader, how to work in a team. Then you do
AmeriCorps, then you learn what all that’s really about,” said AmeriCorps alumna Erica
Schwartz.
Conclusion
When William James wrote of creating “better fathers and teachers of the next
generations” through national service in 1906, he had little idea that the countries of
Israel and Switzerland would be implementing his concept on a smaller scale 100 years
later (James). Although these countries’ national service programs are still primarily
military-oriented, they have just begun to fully realize the successes and benefits
associated with deploying young people in communities instead of on the frontlines. The
sense of self-worth, identity, and life skills instilled in participants by these programs
cannot be discounted. Conversely, the failure of the Russian national service program,
due to its lack of oversight and civilian service options, serves as a paragon of a
national service mandate gone wrong. With these examples considered, the Office of
Senator John F. Kerry should draft a mandate for three months of community-based
national service for all 18 year olds in the United States to improve the lives of both
participants and their communities during these times of economic hardship.
16
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