Education. and Welfare Secretary finds that a 1cality is incapable of providing comprehensive services. Moreover. States can administer programs for migrant children. programs in areas where a city or county is not adequately meeting the needs of preschool children. or programs under the Secretarys additional 5percent reservation for model programs. These roles. and the Secretarys responsibility to determine whether localities are capable of administering programs. are spelled out in the bill. and clarified by a colloquy between Senator NELSON and Senator JAVITs during debate on the conference report. (See CONGRESSIONAL RECORD of December 2. 1971. pp. 4411744118.) As Wilbur J. Cohen. dean of the University of Michigan School of Education and former Secretary of Health.