John F. Kennedy (January 30, 1961)
Mr. Speaker, Mr. Vice President, Members of the Congress:
It is a pleasure to return from whence I came. You are among my oldest
friends in Washington--and this House is my oldest home. It was here, more
than 14 years ago, that I first took the oath of Federal office. It was
here, for 14 years, that I gained both knowledge and inspiration from
members of both parties in both Houses--from your wise and generous
leaders--and from the pronouncements which I can vividly recall, sitting
where you now sit--including the programs of two great Presidents, the
undimmed eloquence of Churchill, the soaring idealism of Nehru, the
steadfast words of General de Gaulle. To speak from this same historic
rostrum is a sobering experience. To be back among so many friends is a
I am confident that that friendship will continue. Our Constitution wisely
assigns both joint and separate roles to each branch of the government; and
a President and a Congress who hold each other in mutual respect will
neither permit nor attempt any trespass. For my part, I shall withhold from
neither the Congress nor the people any fact or report, past, present, or
future, which is necessary for an informed judgment of our conduct and
hazards. I shall neither shift the burden of executive decisions to the
Congress, nor avoid responsibility for the outcome of those decisions.
I speak today in an hour of national peril and national opportunity. Before
my term has ended, we shall have to test anew whether a nation organized
and governed such as ours can endure. The outcome is by no means certain.
The answers are by no means clear. All of us together--this Administration,
this Congress, this nation--must forge those answers.
But today, were I to offer--after little more than a week in
office--detailed legislation to remedy every national ill, the Congress
would rightly wonder whether the desire for speed had replaced the duty of
My remarks, therefore, will be limited. But they will also be candid. To
state the facts frankly is not to despair the future nor indict the past.
The prudent heir takes careful inventory of his legacies, and gives a
faithful accounting to those whom he owes an obligation of trust. And,
while the occasion does not call for another recital of our blessings and
assets, we do have no greater asset than the willingness of a free and
determined people, through its elected officials, to face all problems
frankly and meet all dangers free from panic or fear.
The present state of our economy is disturbing. We take office in the wake
of seven months of recession, three and one-half years of slack, seven
years of diminished economic growth, and nine years of falling farm
Business bankruptcies have reached their highest level since the Great
Depression. Since 1951 farm income has been squeezed down by 25 percent.
Save for a brief period in 1958, insured unemployment is at the highest
peak in our history. Of some five and one-half million Americans who are
without jobs, more than one million have been searching for work for more
than four months. And during each month some 150,000 workers are exhausting
their already meager jobless benefit rights.
Nearly one-eighth of those who are without jobs live almost without hope
in nearly one hundred especially depressed and troubled areas. The rest
include new school graduates unable to use their talents, farmers forced to
give up their part-time jobs which helped balance their family budgets,
skilled and unskilled workers laid off in such important industries as
metals, machinery, automobiles and apparel.
Our recovery from the 1958 recession, moreover, was anemic and incomplete.
Our Gross National Product never regained its full potential. Unemployment
never returned to normal levels. Maximum use of our national industrial
capacity was never restored.
In short, the American economy is in trouble. The most resourceful
industrialized country on earth ranks among the last in the rate of
economic growth. Since last spring our economic growth rate has actually
receded. Business investment is in a decline. Profits have fallen below
predicted levels. Construction is off. A million unsold automobiles are in
inventory. Fewer people are working--and the average work week has shrunk
well below 40 hours. Yet prices have continued to rise--so that now too
many Americans have less to spend for items that cost more to buy.
Economic prophecy is at best an uncertain art--as demonstrated by the
prediction one year ago from this same podium that 1960 would be, and I
quote, "the most prosperous year in our history." Nevertheless, forecasts
of continued slack and only slightly reduced unemployment through 1961 and
1962 have been made with alarming unanimity--and this Administration does
not intend to stand helplessly by.
We cannot afford to waste idle hours and empty plants while awaiting the
end of the recession. We must show the world what a free economy can do--to
reduce unemployment, to put unused capacity to work, to spur new
productivity, and to foster higher economic growth within a range of sound
fiscal policies and relative price stability.
I will propose to the Congress within the next 14 days measures to improve
unemployment compensation through temporary increases in duration on a
self-supporting basis--to provide more food for the families of the
unemployed, and to aid their needy children--to redevelop our areas of
chronic labor surplus--to expand the services of the U.S. Employment
Offices--to stimulate housing and construction--to secure more purchasing
power for our lowest paid workers by raising and expanding the minimum
wage--to offer tax incentives for sound plant investment--to increase the
development of our natural resources--to encourage price stability--and to
take other steps aimed at insuring a prompt recovery and paving the way for
increased long-range growth. This is not a partisan program concentrating
on our weaknesses--it is, I hope, a national program to realize our
Efficient expansion at home, stimulating the new plant and technology that
can make our goods more competitive, is also the key to the international
balance of payments problem. Laying aside all alarmist talk and panicky
solutions, let us put that knotty problem in its proper perspective.
It is true that, since 1958, the gap between the dollars we spend or
invest abroad and the dollars returned to us has substantially widened.
This overall deficit in our balance of payments increased by nearly $11
billion in the 3 years--and holders of dollars abroad converted them
to gold in such a quantity as to cause a total outflow of nearly $5
billion of gold from our reserve. The 1959 deficit was caused in large
part by the failure of our exports to penetrate foreign markets--the
result both of restrictions on our goods and our own uncompetitive
prices. The 1960 deficit, on the other hand, was more the result of an
increase in private capital outflow seeking new opportunity, higher
return or speculative advantage abroad.
Meanwhile this country has continued to bear more than its share of the
West's military and foreign aid obligations. Under existing policies,
another deficit of $2 billion is predicted for 1961--and individuals in
those countries whose dollar position once depended on these deficits for
improvement now wonder aloud whether our gold reserves will remain
sufficient to meet our own obligations.
All this is cause for concern--but it is not cause for panic. For our
monetary and financial position remains exceedingly strong. Including our
drawing rights in the International Monetary Fund and the gold reserve held
as backing for our currency and Federal Reserve deposits, we have some $22
billion in total gold stocks and other international monetary reserves
available--and I now pledge that their full strength stands behind the
value of the dollar for use if needed.
Moreover, we hold large assets abroad--the total owed this nation far
exceeds the claims upon our reserves--and our exports once again
substantially exceed our imports.
In short, we need not--and we shall not--take any action to increase the
dollar price of gold from $35 an ounce--to impose exchange controls--to
reduce our anti-recession efforts--to fall back on restrictive trade
policies--or to weaken our commitments around the world.
This Administration will not distort the value of the dollar in any
fashion. And this is a commitment.
Prudence and good sense do require, however, that new steps be taken to
ease the payments deficit and prevent any gold crisis. Our success in world
affairs has long depended in part upon foreign confidence in our ability to
pay. A series of executive orders, legislative remedies and cooperative
efforts with our allies will get underway immediately--aimed at attracting
foreign investment and travel to this country--promoting American exports,
at stable prices and with more liberal government guarantees and
financing--curbing tax and customs loopholes that encourage undue spending
of private dollars abroad--and (through OECD, NATO and otherwise) sharing
with our allies all efforts to provide for the common defense of the free
world and the hopes for growth of the less developed lands. While the
current deficit lasts, ways will be found to ease our dollar outlays abroad
without placing the full burden on the families of men whom we have asked
to serve our Flag overseas.
In short, whatever is required will be done to back up all our efforts
abroad, and to make certain that, in the future as in the past, the dollar
is as "sound as a dollar."
But more than our exchange of international payments is out of balance.
The current Federal budget for fiscal 1961 is almost certain to show a
net deficit. The budget already submitted for fiscal 1962 will remain in
balance only if the Congress enacts all the revenue measures requested--and
only if an earlier and sharper up-turn in the economy than my economic
advisers now think likely produces the tax revenues estimated.
Nevertheless, a new Administration must of necessity build on the spending
and revenue estimates already submitted. Within that framework, barring the
development of urgent national defense needs or a worsening of the economy,
it is my current intention to advocate a program of expenditures which,
including revenues from a stimulation of the economy, will not of and by
themselves unbalance the earlier Budget.
However, we will do what must be done. For our national household is
cluttered with unfinished and neglected tasks. Our cities are being
engulfed in squalor. Twelve long years after Congress declared our goal to
be "a decent home and a suitable environment for every American family," we
still have 25 million Americans living in substandard homes. A new housing
program under a new Housing and Urban Affairs Department will be needed
Our classrooms contain 2 million more children than they can properly have
room for, taught by 90,000 teachers not properly qualified to teach. One
third of our most promising high school graduates are financially unable to
continue the development of their talents. The war babies of the 1940's,
who overcrowded our schools in the 1950's, are now descending in 1960 upon
our colleges--with two college students for every one, ten years from
now--and our colleges are ill prepared. We lack the scientists, the
engineers and the teachers our world obligations require. We have neglected
oceanography, saline water conversion, and the basic research that lies at
the root of all progress. Federal grants for both higher and public school
education can no longer be delayed.
Medical research has achieved new wonders--but these wonders are too often
beyond the reach of too many people, owing to a lack of income
(particularly among the aged), a lack of hospital beds, a lack of nursing
homes and a lack of doctors and dentists. Measures to provide health care
for the aged under Social Security, and to increase the supply of both
facilities and personnel, must be undertaken this year.
Our supply of clean water is dwindling. Organized and juvenile crimes cost
the taxpayers millions of dollars each year, making it essential that we
have improved enforcement and new legislative safeguards. The denial of
constitutional rights to some of our fellow Americans on account of
race--at the ballot box and elsewhere--disturbs the national conscience,
and subjects us to the charge of world opinion that our democracy is not
equal to the high promise of our heritage. Morality in private business
has not been sufficiently spurred by morality in public business. A host
of problems and projects in all 50 States, though not possible to include
in this Message, deserves--and will receive--the attention of both the
Congress and the Executive Branch. On most of these matters, Messages will
be sent to the Congress within the next two weeks.
But all these problems pale when placed beside those which confront us
around the world. No man entering upon this office, regardless of his
party, regardless of his previous service in Washington, could fail to be
staggered upon learning--even in this brief 10 day period--the harsh
enormity of the trials through which we must pass in the next four years.
Each day the crises multiply. Each day their solution grows more difficult.
Each day we draw nearer the hour of maximum danger, as weapons spread and
hostile forces grow stronger. I feel I must inform the Congress that our
analyses over the last ten days make it clear that--in each of the
principal areas of crisis--the tide of events has been running out and time
has not been our friend.
In Asia, the relentless pressures of the Chinese Communists menace the
security of the entire area--from the borders of India and South Viet Nam
to the jungles of Laos, struggling to protect its newly-won independence.
We seek in Laos what we seek in all Asia, and, indeed, in all of the
world--freedom for the people and independence for the government. And this
Nation shall persevere in our pursuit of these objectives.
In Africa, the Congo has been brutally torn by civil strife, political
unrest and public disorder. We shall continue to support the heroic
efforts of the United Nations to restore peace and order--efforts which
are now endangered by mounting tensions, unsolved problems, and decreasing
support from many member states.
In Latin America, Communist agents seeking to exploit that region's
peaceful revolution of hope have established a base on Cuba, only 90 miles
from our shores. Our objection with Cuba is not over the people's drive for
a better life. Our objection is to their domination by foreign and domestic
tyrannies. Cuban social and economic reform should be encouraged. Questions
of economic and trade policy can always be negotiated. But Communist
domination in this Hemisphere can never be negotiated.
We are pledged to work with our sister Republics to free the Americas of
all such foreign domination and all tyranny, working toward the goal of a
free hemisphere of free governments, extending from Cape Horn to the Arctic
In Europe our alliances are unfulfilled and in some disarray. The unity of
NATO has been weakened by economic rivalry and partially eroded by national
interest. It has not yet fully mobilized its resources nor fully achieved a
common outlook. Yet no Atlantic power can meet on its own the mutual
problems now facing us in defense, foreign aid, monetary reserves, and a
host of other areas; and our close ties with those whose hopes and
interests we share are among this Nation's most powerful assets.
Our greatest challenge is still the world that lies beyond the Cold
War--but the first great obstacle is still our relations with the Soviet
Union and Communist China. We must never be lulled into believing that
either power has yielded its ambitions for world domination--ambitions
which they forcefully restated only a short time ago. On the contrary, our
task is to convince them that aggression and subversion will not be
profitable routes to pursue these ends. Open and peaceful competition--for
prestige, for markets, for scientific achievement, even for men's minds--is
something else again. For if Freedom and Communism were to compete for
man's allegiance in a world at peace, I would look to the future with ever
To meet this array of challenges--to fulfill the role we cannot avoid on
the world scene--we must reexamine and revise our whole arsenal of tools:
military, economic and political.
One must not overshadow the other. On the Presidential Coat of Arms, the
American eagle holds in his right talon the olive branch, while in his left
he holds a bundle of arrows. We intend to give equal attention to both.
First, we must strengthen our military tools. We are moving into a period
of uncertain risk and great commitment in which both the military and
diplomatic possibilities require a Free World force so powerful as to make
any aggression clearly futile. Yet in the past, lack of a consistent,
coherent military strategy, the absence of basic assumptions about our
national requirements and the faulty estimates and duplication arising from
inter-service rivalries have all made it difficult to assess accurately how
adequate--or inadequate--our defenses really are.
I have, therefore, instructed the Secretary of Defense to reappraise our
entire defense strategy--our ability to fulfill our commitments--the
effectiveness, vulnerability, and dispersal of our strategic bases, forces
and warning systems--the efficiency and economy of our operation and
organization--the elimination of obsolete bases and installations--and the
adequacy, modernization and mobility of our present conventional and
nuclear forces and weapons systems in the light of present and future
dangers. I have asked for preliminary conclusions by the end of
February--and I then shall recommend whatever legislative, budgetary or
executive action is needed in the light of these conclusions.
In the meantime, I have asked the Defense Secretary to initiate immediately
three new steps most clearly needed now:
First, I have directed prompt attention to increase our air-lift capacity.
Obtaining additional air transport mobility--and obtaining it now--will
better assure the ability of our conventional forces to respond, with
discrimination and speed, to any problem at any spot on the globe at any
moment's notice. In particular it will enable us to meet any deliberate
effort to avoid or divert our forces by starting limited wars in widely
scattered parts of the globe.
(b) I have directed prompt action to step up our Polaris submarine program.
Using unobligated ship-building funds now (to let contracts originally
scheduled for the next fiscal year) will build and place on station--at
least nine months earlier than planned--substantially more units of a
crucial deterrent--a fleet that will never attack first, but possess
sufficient powers of retaliation, concealed beneath the seas, to discourage
any aggressor from launching an attack upon our security.
(c) I have directed prompt action to accelerate our entire missile program.
Until the Secretary of Defense's reappraisal is completed, the emphasis
here will be largely on improved organization and decision-making--on
cutting down the wasteful duplications and the time-lag that have
handicapped our whole family of missiles. If we are to keep the peace, we
need an invulnerable missile force powerful enough to deter any aggressor
from even threatening an attack that he would know could not destroy enough
of our force to prevent his own destruction. For as I said upon taking the
oath of office: "Only when our arms are sufficient beyond doubt can we be
certain beyond doubt that they will never be employed."
Secondly, we must improve our economic tools. Our role is essential and
unavoidable in the construction of a sound and expanding economy for the
entire non-communist world, helping other nations build the strength to
meet their own problems, to satisfy their own aspirations--to surmount
their own dangers. The problems in achieving this goal are towering and
unprecedented--the response must be towering and unprecedented as well,
much as Lend-Lease and the Marshall Plan were in earlier years, which
brought such fruitful results.
(a) I intend to ask the Congress for authority to establish a new and more
effective program for assisting the economic, educational and social
development of other countries and continents. That program must stimulate
and take more effectively into account the contributions of our allies, and
provide central policy direction for all our own programs that now so often
overlap, conflict or diffuse our energies and resources. Such a program,
compared to past programs, will require
--more flexibility for short run emergencies
--more commitment to long term development--new attention to education at
all levels--greater emphasis on the recipient nation's role, their effort,
their purpose, with greater social justice for their people, broader
distribution and participation by their people and more efficient public
administration and more efficient tax systems of their own
--and orderly planning for national and regional development instead of a
I hope the Senate will take early action approving the Convention
establishing the Organization for Economic Cooperation and Development.
This will be an important instrument in sharing with our allies this
development effort--working toward the time when each nation will
contribute in proportion to its ability to pay. For, while we are prepared
to assume our full share of these huge burdens, we cannot and must not be
expected to bear them alone.
To our sister republics to the south, we have pledged a new alliance for
progress--alianza para progreso. Our goal is a free and prosperous Latin
America, realizing for all its states and all its citizens a degree of
economic and social progress that matches their historic contributions of
culture, intellect and liberty. To start this nation's role at this time in
that alliance of neighbors, I am recommending the following:
--That the Congress appropriate in full the $500 million fund pledged by
the Act of Bogota, to be used not as an instrument of the Cold War, but as
a first step in the sound development of the Americas.
--That a new Inter-Departmental Task Force be established under the
leadership of the Department of State, to coordinate at the highest level
all policies and programs of concern to the Americas.
--That our delegates to the OAS, working with those of other members,
strengthen that body as an instrument to preserve the peace and to prevent
foreign domination anywhere in the Hemisphere.
--That, in cooperation with other nations, we launch a new hemispheric
attack on illiteracy and inadequate educational opportunities to all
levels; and, finally,
--That a Food-for-Peace mission be sent immediately to Latin America to
explore ways in which our vast food abundance can be used to help end
hunger and malnutrition in certain areas of suffering in our own
This Administration is expanding its Food-for-Peace Program in every
possible way. The product of our abundance must be used more effectively to
relieve hunger and help economic growth in all corners of the globe. And I
have asked the Director of this Program to recommend additional ways in
which these surpluses can advance the interests of world peace--including
the establishment of world food reserves.
An even more valuable national asset is our reservoir of dedicated men and
women--not only on our college campuses but in every age group--who have
indicated their desire to contribute their skills, their efforts, and a
part of their lives to the fight for world order. We can mobilize this
talent through the formation of a National Peace Corps, enlisting the
services of all those with the desire and capacity to help foreign lands
meet their urgent needs for trained personnel.
Finally, while our attention is centered on the development of the non-
communist world, we must never forget our hopes for the ultimate freedom
and welfare of the Eastern European peoples. In order to be prepared to
help re-establish historic ties of friendship, I am asking the Congress
for increased discretion to use economic tools in this area whenever
this is found to be clearly in the national interest. This will require
amendment of the Mutual Defense Assistance Control Act along the lines I
proposed as a member of the Senate, and upon which the Senate voted last
summer. Meanwhile, I hope to explore with the Polish government the
possibility of using our frozen Polish funds on projects of peace that
will demonstrate our abiding friendship for and interest in the people
Third, we must sharpen our political and diplomatic tools--the means of
cooperation and agreement on which an enforceable world order must
I have already taken steps to coordinate and expand our disarmament
effort--to increase our programs of research and study--and to make arms
control a central goal of our national policy under my direction. The
deadly arms race, and the huge resources it absorbs, have too long
overshadowed all else we must do. We must prevent that arms race from
spreading to new nations, to new nuclear powers and to the reaches of outer
space. We must make certain that our negotiators are better informed and
better prepared--to formulate workable proposals of our own and to make
sound judgments about the proposals of others.
I have asked the other governments concerned to agree to a reasonable delay
in the talks on a nuclear test ban--and it is our intention to resume
negotiations prepared to reach a final agreement with any nation that is
equally willing to agree to an effective and enforceable treaty.
We must increase our support of the United Nations as an instrument to end
the Cold War instead of an arena in which to fight it. In recognition of
its increasing importance and the doubling of its membership
--we are enlarging and strengthening our own mission to the U.N.
--we shall help insure that it is properly financed.
--we shall work to see that the integrity of the office of the
Secretary-General is maintained.
--And I would address a special plea to the smaller nations of the
world--to join with us in strengthening this organization, which is far
more essential to their security than it is to ours--the only body in the
world where no nation need be powerful to be secure, where every nation has
an equal voice, and where any nation can exert influence not according to
the strength of its armies but according to the strength of its ideas. It
deserves the support of all.
Finally, this Administration intends to explore promptly all possible areas
of cooperation with the Soviet Union and other nations "to invoke the
wonders of science instead of its terrors." Specifically, I now invite all
nations--including the Soviet Union--to join with us in developing a
weather prediction program, in a new communications satellite program and
in preparation for probing the distant planets of Mars and Venus, probes
which may someday unlock the deepest secrets of the universe.
Today this country is ahead in the science and technology of space, while
the Soviet Union is ahead in the capacity to lift large vehicles into
orbit. Both nations would help themselves as well as other nations by
removing these endeavors from the bitter and wasteful competition of the
Cold War. The United States would be willing to join with the Soviet Union
and the scientists of all nations in a greater effort to make the fruits
of this new knowledge available to all--and, beyond that, in an effort to
extend farm technology to hungry nations--to wipe out disease--to increase
the exchanges of scientists and their knowledge--and to make our own
laboratories available to technicians of other lands who lack the
facilities to pursue their own work. Where nature makes natural allies of
us all, we can demonstrate that beneficial relations are possible even
with those with whom we most deeply disagree--and this must someday be the
basis of world peace and world law.
I have commented on the state of the domestic economy, our balance of
payments, our Federal and social budget and the state of the world. I would
like to conclude with a few remarks about the state of the Executive
branch. We have found it full of honest and useful public servants--but
their capacity to act decisively at the exact time action is needed has too
often been muffled in the morass of committees, timidities and fictitious
theories which have created a growing gap between decision and execution,
between planning and reality. In a time of rapidly deteriorating situations
at home and abroad, this is bad for the public service and particularly bad
for the country; and we mean to make a change.
I have pledged myself and my colleagues in the cabinet to a continuous
encouragement of initiative, responsibility and energy in serving the
public interest. Let every public servant know, whether his post is high or
low, that a man's rank and reputation in this Administration will be
determined by the size of the job he does, and not by the size of his
staff, his office or his budget. Let it be clear that this Administration
recognizes the value of dissent and daring--that we greet healthy
controversy as the hallmark of healthy change. Let the public service be a
proud and lively career. And let every man and woman who works in any area
of our national government, in any branch, at any level, be able to say
with pride and with honor in future years: "I served the United States
government in that hour of our nation's need."
For only with complete dedication by us all to the national interest can we
bring our country through the troubled years that lie ahead. Our problems
are critical. The tide is unfavorable. The news will be worse before it is
better. And while hoping and working for the best, we should prepare
ourselves now for the worst.
We cannot escape our dangers--neither must we let them drive us into panic
or narrow isolation. In many areas of the world where the balance of power
already rests with our adversaries, the forces of freedom are sharply
divided. It is one of the ironies of our time that the techniques of a
harsh and repressive system should be able to instill discipline and ardor
in its servants--while the blessings of liberty have too often stood for
privilege, materialism and a life of ease.
But I have a different view of liberty.
Life in 1961 will not be easy. Wishing it, predicting it, even asking for
it, will not make it so. There will be further setbacks before the tide is
turned. But turn it we must. The hopes of all mankind rest upon us--not
simply upon those of us in this chamber, but upon the peasant in Laos, the
fisherman in Nigeria, the exile from Cuba, the spirit that moves every man
and Nation who shares our hopes for freedom and the future. And in the
final analysis, they rest most of all upon the pride and perseverance of
our fellow citizens of the great Republic.
In the words of a great President, whose birthday we honor today, closing
his final State of the Union Message sixteen years ago, "We pray that we
may be worthy of the unlimited opportunities that God has given us."