2
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33
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47edd3138a59fe0139be8046cf80462a
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November 29, 1966
TO : Meubers of Task Force
FROM 3 ArDee dimes 4A
_ SUBJECT: Secretary Weaver's Suggestions for the Long-Term Study
The following are suggestions for the long-term stuly made by Secretary
Weaver et his meeting with mesbers of the Task Force, November 25:
i.
stock of existing prograns thet deal with probleas of
2. Explore the role of State Government in dealing with the problex of
3. Seek to develop an urban lend policy, which might stert with the
h. Re-examing the role of FHA in Light of todayh conditions; deternine
whether nodificstion or new mechanisas be developed to deal
with new end higher risk housing needs.
§. Analyze problems of determining where sufficient nortgage money
is to come from to meet rapidly housing needs in the
in this o "
6. Consider the problem of urben transportation.
7- Explore possible inducements and incentives to gain greeter coopere-
goals.
&. Examine the problem of achieving equel opportunity, end providing
economic, as well as ethnic ond racial diapersal in urbanized areas.
9. Consider problems and development of policy on new towns.
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Box 22, Folder 18, Document 20
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
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70dc96b44e383f433f963597b16aec84
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Box 22, Folder 18, Document 21
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
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https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/5085be9d1b94a4fbec9858d24873d3f5.pdf
597db536d5c1e01a097554456f655cb6
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Noveml> r 23,
TO : All Member of the T
s
FROM:
the draft sub-cammitt
Attached
Dece
Force
r
l
port.
1966
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November 23, 1966
TO : All Members of the Task Force
PROM: ArDee Ames
Attached are the draft sub-committee summaries for the
December 1 report.
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Title
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Box 22, Folder 18, Document 22
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
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https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/d28368df9f76306efcba46324e563262.pdf
564f78ea14b0feba6e7d85ba964e1308
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Dictated but not read
A PILOT P (X;R.A.t\.l TO P RO::-lOTI..: HO:-IEG:E-.:ERSllIP .1~- iO:'-!G SLUl'-I RESIDS:;:-ns
by Anthony Dmvns
The desire to own n home is a bas ic par t of our tra dition.
Today 62% of Amer ican f amilies h ave ach i eved tha t des ire.
Yet the re
are still millions of f ami lies who wou ld J. il~e to own the ir m-Tn h omes~.
but c annot.
arr angements.
They are too poor to do so und er present financing
J\t
l eas t, ha lf a million such househo ld s now r ent
sub standard h ou s ing in our metropolitan area s.
A chance to mm a de cent
home of their m-m mi ght hav e a profound effect up on their att i tuc es
towards soci e ty.
Instead o f f ee li no like fru strat e d and he l pless
transi e nts floa t ing a l ong in th e po re rty and filth of t he slums , they
c ou l d b g in deve loping a chanc e o_f contro l ove r . the ir
a;-717_
destiny.
The y cou l d gradual l y build a stake in the ir commun it i es , alld wou l d l earn
how t o u se ar'.d b enef it fro:n l ega l and politic a l i nstit uti ons they no
7
rega rd with hos tility.
Furthermore, providing th e l m-r- income h ou sehold with h ome-owner hip
assistance would no, be g iving them the same advnntage we a l r eady ext end
t o mil li ons o f middle-income and up per- income households.
These h ous ehol ds
now r eceive a l arge subs icly i n the form of f ederel income tax deduction
for the int er es t and pr operty t axes pa id on the ir home s .
Thi s subsidy
amounts to at l east $1. 7 bilU on per year for j ust the wea lth iest 20%
i n the form of al l public h ousing pnymcnts, we l fare payme nts ~ and t ax
deductions c ombined.
Cl e ar l y, t ax de ductions aren ' t much he lp t o f amili e s
�2
with littl e or no t axab l e inc o~e .
Sc simple j ustic e demands tha t we
encourc1ge h ome owners hip fo r th em in some oth e r way mor e suit ab l e to
the i r n eeds,
Th ere fore, we r ecomme nd ena ctment o f a pi l ot program of aid to
l ow-income famili es to h e lp th em achieve home owne rship.
This program
should conc entra t e up on slum dwe ll er.s because the y nou h ave at l east an
opportunity to mm de c ent h omes, and bec auf;e it Hou l d h e l p i mprove s l um
l iving cond itions in genera l .
The pr og ram shou ld ass i s t s l um r es id ents
either to move out of slums by buying h o:nes e l sewh ere s or to ac qu ire
ownership of new l y r eha bilitated ui1its in ne i ghb orho ods whoch will be
u p-gr aded t hr ough a wid e variety of oth er progr ams to o -- as in the
~Jode l Citi es Program.
This h ome- m,mer hip program wo uld he lp l m-:~lncome
famil i es buy sing l e-family ·houscs s · individua l unit s in multi- fam ily
c ond om i niums , or apartment bu il dings ,~1 i ch th ey op er ated as r es i de nt
l and lord s - - r ep lacing absentee l and l ords
, ~10
had neg l e c ted t he i r prop-rties.
Seve r a l types of aid would b e i nvo l ved in thi s program .
First , th e
slum hou s i ng units i nvo l ved would be su bstandard one s r ehab ili tated by a
pub l ic agency or a non-pro fi t group be fore be i ng so l d t o n ew owne rs.
Second, b e l ow-market- r ate l oans shou ld be us ed to fina nce owners on a
n o-down payment bas i s.
Third, potentia l ·o·,mers should reciev e advanced
t r a ini ng in th e sk ill s of minor ma i ntenances f inanc ing , and oth e r
r esponsib ilities of owne rshipo
Fourth, new owners from t he l owest-
i ncome groups would need a monthly h ous i ng supp l ement sim i lar to the rent
supplement but app lic a ble to owne rship payment s.
Fifth, so;ne t enant s
i n r es id ent- l andlord bu ildings t-:ou ld receive r ent supj_::-le.;nents.
Sixth,
owners should receive follow-on couns e li ng about financin 6 , and repairs.
'-··
�3
Seventh~ th e publ i c agency r unni n g the prog r a:11 would agr ee to buy b a ck
the housing invo lved duri ng a fi xed pe riod in c as e the owne rs c ould not
car ry the r e quir e d burdens.
In our opinion ~ thj s i s a program s o lidly in the Ame ri c an t radition,
and we ll worth trying.
'- -
�
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Dictated -but not read
A PILOT PROGRAM TO PROMOTE HOMEOWNERSHIP AMONG SLUM RESIDENTS
by Anthony Downs
The desire to own a home is a basic part of our tradition.
Today 62% of American families have achieved that desire. Yet there
are still millions of families who would like to own their own homes,,
but cannot. They are too poor to do so under present financing
arrangements. At least, half a million such households now rent
substandard housing in our metropolitan areas. A chance to own a decent
home of their own might have a profound effect upon their attitudes
towards society. Instead of feeling like frustrated and helpless we
transients floating along in the poverty and filth of the slums, they
could begin developing a chance of control over their own destiny.
They could gradually build a stake in their communities, and would learn
how to use and benefit from legal and political institutions they now
regard with hostility.
Furthermore, providing the Lagahoors household with home-ownership
assistance would now be giving them the same advantage we already extend
to millions of middle-income and upper-income households. These households
now receive a large subsidy in the form of federal income tax deduction
for the interest and property taxes paid on their homes. This subsidy
amounts to at least $1.7 billion per year for just the wealthiest 20%
in the form of all public housing payments, welfare payments, and tax
deductions combined. Clearly, tax deductions aren't much help to families
with little or no taxable income. Se simple justice demands that we
encourage home ownership for them in some other way more suitable to
their needs.
Therefore, we recommend enactment of a pilot program of aid to
low-income families to help them achieve home ownership. This program
should concentrate upon slum dwellers because they now have at least an
opportunity to own decent homes, and because it would help improve slum
living conditions in general. The program should assist slum residents
either to move out of slums by buying homes elsewhere, or to acquire
ownership of newly rehabilitated units in neighborhoods whoch will be
up-graded through a wide variety of other programs too -- as in the
Model Cities Program. This home-ownership program would help low-income
families buy single-family houses, individual units in multi-family
condominiums, or apartment buildings which they operated as resident
landlords -- replacing absentee landlords who had neglected their properties.
Several types of aid would be involved in this program. “Fiest, the
slum housing units involved would be substandard ones rehabilitated by a
public agency or a non-profit group before being sold to new owners.
Second, below-market-rate loans should be used to finance owners on a
no-down payment basis. Third, potential owners should recieve advanced
training in the skills of minor maintenance, financing, and other
responsibilities of ownership. Fourth, new owners from the lowest-
income groups would need a monthly housing supplement similar to the rent
supplement but applicable to ownership payments. Fifth, some tenants
in resident-landlord buildings would receive rent supplements. Sixth,
owners should receive follow-on counseling about financing, and repairs. :
Seventh, the public agency running the program would agree ta buy back
the housing involved during a fixed period in case the owners could not
carry the required burdens.
In our opinion, this is a program solidly in the American tradition,
and well worth trying.
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Title
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Box 22, Folder 18, Document 23
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
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https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/956c5972842841bb5767b68956feda54.pdf
2bf97d5b746edde82bc86437c563447d
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Dictated but not read
DRAFT SUMMARY ON LANDLORD-TENANT
by Julian Levi
I.
Archaic landlord-tenant law and principles, once appropriate to
an agricultural society, must be reformed and modernized to meet the
need of industrialized urban America.
Ancient legal doctrine construing a lease as a conveyance of an
interest in land rather than an agreement leads to the holding that
the obligation of the tenant to pay rent is independent of the duty
of the landlord to repair and maintain the premises.
The sole remedy
thus available to the tenant to secure his rights is limited to his
vacating the premises and then granting termination of the lease or
himself repairing the premises, financing the cost and thereafter
creating a set-off against further rents.
Such limitations, while onerous to all tenants, are intolerable
in their application to poor people.
within their means is minimal.
Their choice of accorrnnodation
They cannot finance repairs nor often
even gain access to parts of the premises requiring repair.
While
state and local governments prescribe minimum standards for housing
accorrnnodations, outdated legal practices thwart the poor in direct
assertion of their rights.
�r------'-"'=---- - - - --- -
2
II.
Reformation of landlord-tenant law is a state and local
government responsibility burdened with consequence to the
national welfare.
While appropriate solutions may vary between jurisdictions
certain broad principles must be applied throughout:
A.
State and local enforcement of building, health, and
safety codes must be streamlined and improved.
Administrative
flexibility and fact-finding must be fostered and the power of
local courts strengthened.
The obligation of code compliance
must be a prior charge on the property itself and all rights
within rather than merely a personal obli gat ion of the owners.
/
B.
Compliance with law must be a basic part of every
agreement and every right.
Obligations of landlord and tenant
alike as provided in building , health and safety codes must be
construed as creating independent rights enforceable by direct
legal action.
Determination of such issues in the court room
must be facilitated.
C.
Public funds must not reward illegal conduct.
Appropriate
rent withholding procedures must be developed for the welfare
tenant.
Appropriate actions must be taken in all public acquisition
to the end that prices paid disregard values achieved from income
derived in property operation contrary to minimum building, health
and safety codes.
�3.
While these responsibilities are local, the Federal government
can and has assisted:
(1)
the establishment of neighborhood l egal
centers in slums by the directive of the Office of Economic Opportunity who are maldng a major effort to help te nants secure the ir rights
to safe and sanitary housing :
(2)
the convening of a conference by
the Attorney General to develop new procedures to insure that the
rights of tenants are fully and effectively enforced;
(3)
the
appointment of a commission to make a comprehensive review of codes, zoning,
taxation and development standards.
III.
Practices and activities of the Federal government while indirect,
inept, enforcement of fire prevention, housing, building, and sanit at ion
law as a responsibility of local government can be of decisive i mportance:
(l)
Section lOla of Public Law 171 qualifies federal assistance
upon the appropriate local public body undertaking "positive progr ams" and
"workable programs" for community improvement through the "adoption,
modernization, administration and enforcement of housing , zoning , building
and other local laws, codes and regulat ions relating to l and use and adequate
standards of health, sanitation and s afety and building , includi ng the use
of occupancy of dwellings."
Administrat ive regulations heretofore issued
by the Secretary of Housing and Urban Development should be clarified to direct
specific enumeration and attention to the appli c ation and enforcement of
local codes and ordinance s related t o life, health and safety throughout
the locality and to demonstrate increased effort and progress in s uch enforcement.
Such enfor cement of minimum codes shall be required as protection of li f e and
health of occupants irrespective of whether a basically sound and stabl e are a
is to be created.
The Secretary of Housing and Urban Development can further
-l<·
*
�- -~ - ----
---~
-·
- - - ---·- - - - - ---
-- -
4.
implement the purposes of the legislation through the development ·of major
uniform statistical reporting whereby a yardstick of comparable muni cipal
performance may be established.
(2)
The Secretary of Housing and Urban Development can t ake exist-
ing regulations to the end that mortgage insurance ava~lable through the
Federal Housing Administration for property acquisition, rehabilitat ion
and improvement must be conditioned upon code compliance.
At t he same
time mortgage insurance and grants under section 312 can be promoted and expedited .
Special personnel can be designated in each insuring office of the Federal
Housing Administration with the specific assignment of coordinating the insuring activities of that agency with city building departments and community organizations to the end that division of property financing for complete
rehabilitation to meet code standards be gre atly expedited.
(3)
The Secretary of Health, Education and Welfare can by admini -
strative regulation require that each local authority participate in
administration and disbursement of relief funds available in collaboration
with appropriate local authorities systems of housing inspection and certification to the end that appropriate withholding of rents where justif i ed b e
undertaken.
(4)
All departments of government concerned with property acquisi-
tion wherever federal investment is involved can r equire t hat t he acqui sition
public authority demonstrat e and certify t hat no part of the award granted
or payment made represents values achieved by operation contrary to local
codes of building , health, and s afety.
(5)
All department s of government dealing with the audit ~d verifica -
tion of rea,l estate and mortgage as sets can re quire certif i cati on as to the
vroperty concer ned no complaints are pr esently pendi ng by any l ocal authority
charging violat i on of local minimurn codes, building health and safety.
�,
TV•
At this time property owners in deteriorated or declining
city areas assume that the municipality either cannot or will
not enforce the building, housing, health and sanitation l aws an assumption based on experience and occasions supported by
federal statement:
"Characteristic of a typical slum area is the overcrowding
of housing units well beyond the l eve l s permitted by local
codes. Any effort to enforce the occupancy standards of
the code would have as its immediate consequence a massive
displacement of the families occupying the overcrowded
units. This might be acceptable if it were coupled with
a concurrent program to make available to such families
decent housing at prices they can afford. Unfortunately,
the latter tends to b e far slower and more costly than
the carrying out of code enforcement. In many cases local
courts have recognized this consequence and, as a matter
of public policy, have refused to permit enforcement action.
"By its v ery nature, a program of code enforcement requires
propoerty owners to make substanti al investments in repairs
and improvements in order to avoid prosecution. Unless that
investment is coupled to an increase in rental returns or
property values, the owner is likely never to be able to
recover the cost. But since we are still dealing with a
seriously bli ghted area, neither the increase in rerit~ls or
property value s is likely to occur. The present tenants
usually cannot afford hi gher r entals, particularly if
occupancy is reduced and there are fewer wage earners to
pay the rent. Tenants with higher incomes usually cannot
be persuaded to move into a still bli ghted area. The value
o f the property in a private sale cannot be expected to
increase unless the rentals increase nor would the repairs
or improvements add si gnificantly to the property v alue in
the event of a future public comdemnation.
�"It has been argued that rigid code enforcement in
deteriorated areas will so depress property values
that new purchasers will be able to afford to make
the necessary repairs without increa sing rents.
In fact, this does not happen on any broad scale.
While our understanding of the factors which motivate
owners of slum prope rty is very limited, a recent
study does cast some light on this. The large
,sophisticated' owners of slum property usually have
so little of their own money invested that any feasible
reduction in cost of purchasing could not equal the
cost of needed repairs. On the other hand, the small
'unsophisticated' investor is usually incapable of
taking advantage of any such economic effects.
.In sum, it is our belief that concentrated code
enforcement by itself in badly blighted areas would
result in more turmoil than improvement of housing
conditions. But to say that this one approach will
not work is not a satisfactory answer to a very real
and pressing problem. Although we have not yet arrived
at anything we regard as an adequate solution, it would
be extremely valuable to present some of the problems
and possible approaches in order to bet broader
consideration."
"Staff Report Housing and Urban Development
f orwarded by the Secretary to Senator John
Sparkman, Chairman Subcommittee on Housing,
Senate Committee on Banking and Currency,
July 26, 1966."
The assumption becomes an unful fi lled prophecy:
A.
Property owners reduce expenditures for property maintenance
and repair wherever possible.
B.
Tenant and community morale collapse.
C.
Constructive community leadership is denied creditabil ity.
�-I
If it be assumed that power of state and local government to
regulate housing condition in order to preserve life, health and
safety is a prior charge on all interest in property, then the equation
as to the feasibility of property repair to minimum st andards is simply
whether the gross rent roll will cover current operating expense,
current taxes, and principle and interest payments to cover the cost
of repair.
Antecedent mortgage commitments as well as the equity investment
are irrelevant to the issue.
Where mortgagees and property owners,
contrary to existing assumptions, are convinced of this contingency,
their conduct concerning property repair and maintenance would be
altered significantly.
In this circumstance it would not be ne cessary
that public action be asserte d a gainst ea ch property in a given neighborhood
in order to r everse the prior assumptions .
A formidable case ex ists therefore for s el ection of a few
neighborhoods in which after complete inventory of structure condit i on,
ownershipj mortgage debt, and pri or hi story of code enf or cement, an
experimental program be undertaken by the appropriate local public ,
author i ty, working i n collabora tion with the loca l communi t y , i n whi ch
a•numb er of t he poss ibl e sanctions we re enumer a t ed we r e emp loyed.
The e f f ort is a ttrac t ive i n: (1) pres enting a new att a ck upon the
syndrome of community decli ne and coll apse; ( 2) of fering promise of
reduce d publi c expend itures by i mpos ing costs upon non- conf orming
pr operties; (3) gene rating i ncreased v olume compli ance with minimum
codes and standards.
�
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Text
Any textual data included in the document
Dictated but not read
DRAFT SUMMARY ON LANDLORD-TENANT
by Julian Levi
Archaic landlord-tenant law and principles, once appropriate to
an agricultural society, must be reformed and modernized to meet the
need of industrialized urban America.
Ancient legal doctrine construing a lease as a conveyance of an
interest in land rather than an agreement leads to the holding that
the obligation of the tenant to pay rent is independent of the duty
of the landlord to repair and maintain the premises. The sole remedy
thus available to the tenant to secure his rights is limited to his
vacating the premises and then granting termination of the lease or
himself repairing the premises, financing the cost and thereafter
creating a set-off against further rents.
Such limitations, while onerous to all tenants, are intolerable
in their application to poor people. Their choice of accommodation
within their means is minimal. They cannot finance repairs nor often
even gain access to parts of the premises requiring repair. While
state and local governments prescribe minimum standards for housing
accommodations, outdated legal practices thwart the poor in direct
assertion of their rights.
II,
Reformation of landlord-tenant law is a state and local
government responsibility burdened with consequence to the
national welfare.
While appropriate solutions may vary between jurisdictions
certain broad principles must be applied throughout:
A. State and local enforcement of building, health, and
safety codes must be streamlined and improved. Administrative
flexibility and fact-finding must be fostered and the power of
local courts strengthened. The obligation of code compliance
must be a prior charge on the property itself and all rights
within rather than merely a personal obligation of the owners.
’
Be Compliance with law must be a basic part of every
agreement and every right. Obligations of landlord and tenant
alike as provided in building, health and safety codes must be
construed as creating independent rights enforceable by direct
legal action. Determination of such issues in the court room
must be facilitated.
C. Public funds must not reward illegal conduct. Appropriate
rent withholding scoeadures must be developed for the welfare
tenant. Appropriate actions must be taken in all public acquisition
to the end that prices paid disregard values achieved from income
derived in property operation contrary to minimum building, health
and safety codes.
we “we cy
iy
While these responsibilities are local, the Federal government
can and has assisted: (1) the establishment of neighborhood legal
centers in slums by the directive of the Office of Economic Opportun-
ity who are making a major effort to help tenants secure their rights
to safe and sanitary housing: (2) ‘the convening of a conference by
the Attorney General to develop new procedures to insure that the
rights of tenants are fully and effectively enforced; (3) the
appointment of a commission to make a comprehensive review of codes, zoning,
taxation and development standards.
rit. Practices and activities of the Federal government while indirect,
inept, enforcement of fire prevention, housing, building, and sanitation
law as a responsibility of local government can be of decisive importance:
(1) Section 10la of Public Law 171 qualifies federal assistance
upon the appropriate local public body undertaking "positive programs” and
"workable programs" for community improvement through the “adoption,
modernization, administration and enforcement of housing, zoning, building
and other local laws, codes and regulations relating to land use and adequate
standards of health, sanitation and safety and building, including the use
of occupancy of dwellings." Administrative regulations heretofore issued
by the Secretary of Housing and Urban Development should be clarified to direct
specific enumeration and attention to the application and enforcement of
local codes and ordinances related to life, health and safety throughout
the locality and to demonstrate increased effort and progress in such enforcement.
Such enforcement of minimum codes shall be required as protection of life and
health of occupants irrespective of whether a basically sound and stable area
is to be created. The Secretary of Housing and Urban Development can further
implement the purposes of the legislation through the development of mejor
uniform statistical reporting whereby a yardstick of comperable municipal
performance may be established.
(2) The Secretary of Housing and Urban Development can teke exist-
ing regulations to the end that mortgage insurance availeble through the
Federal Housing Administration for property acquisition, rehabilitation
and improvement must be conditioned upon code compliance. At the same
time mortgage insurance and grants under section 312 can be promoted dnd -siicadbteid:
Special personnel can be designated in each insuring office of the Federal
Housing Administration with the specific assignment of coordinating the in-
suring activities of that agency with city building departments and com-
munity organizations to the end that division of property financing for complete
rehabilitation to meet code standards be greatly expedited. .
(3) The Secretary of Health, Education and Welfare can by admini-
strative regulation require that each local authority participate in
administration and disbursement of relief funds available in collaboration
with appropriate local authorities systems of housing inspection and certvifi-
eation to the end that appropriate withholding of rents where justified be
undertaken.
(4) All departments of government concerned with property acquisi-
tion wherever federal investment is involved can require that the acquisition
public authority demonstrate and certify thet no part of the award granted
or payment made represents values achieved by operation contrary to local
codes of building, health, and safety.
(5) All departments of government dealing with the eudit end verifica-
tion of real estate and mortgage assets can require certification as to the
' property concerned no complaints are presently pending by any local authority
charging violation of local minimum codes, building health and safety.
xe
At this time property owners in deteriorated or declining
city areas assume that the municipality either cannot or will
not enforce the building, housing, health and sanitation laws -
an assumption based on experience and occasions supported by
federal statement;
"Characteristic of a typical slum area is the overcrowding
of housing units well beyond the levels permitted by local
codes. Any effort to enforce the occupancy standards of
the code would have as its immediate consequence a massive
displacement of the families occupying the overcrowded ‘
units. This might be acceptable if it were coupled with
a concurrent program to make available to such families
decent housing at prices they can afford. Unfortunately,
the latter tends to be far slower and more costly than
the carrying out of code enforcement. In many cases local
courts have recognized this consequence and, as a matter
of public policy, have refused to permit enforcement action.
"By its very nature, a program of code enforcement requires
propoerty owners to make substantial investments in repairs
and improvements in order to avoid prosecution. Unless that
investment is coupled to an increase in rental returns or
property values, the owner is likely never to be able to
recover the cost. But since we are still dealing with a
seriously blighted area, neither the increase in renavls or
property values is likely to occur. The present tenants
usually cannot afford higher rentals, particularly if
occupancy is reduced and there are fewer wage earners to
pay the rent. Tenants with higher incomes usually cannot
be persuaded to move into a still blighted area. The value
of the property in a private sale cannot be expected to
increase unless the rentals increase nor would the repairs
or improvements add significantly to the property value in
the event of a future public comdemnation.
C.
"It has been argued that rigid code enforcement in
deteriorated areas will so depress property values
that new purchasers will be able to afford to make
the necessary repairs without increasing rents.
In fact, this does not happen on any broad scale.
While our understanding of the factors which motivate
owners of slum property is very limited, a recent
study does cast some light on this. The large
Tsophisticated' owners of slum property usually have
so little of their own money invested that any feasible
reduction in cost of purchasing could not equal the
cost of needed repairs. On the other hand, the small
"unsophisticated' investor is usually incapable of
taking advantage of any such economic effects.
"In sum, it is our belief that concentrated code
enforcement by itself in badly blighted areas would
result in more turmoil than improvement of housing
conditions. But to say that this one approach will
not work is not a satisfactory answer to a very real
and pressing problem. Although we have not yet arrived
at anything we regard as an adequate solution, it would
be extremely valuable to present some of the problems
and possible approaches in order to bet broader
consideration."
"Staff Report Housing and Urban Development
forwarded by the Secretary to Senator John
Sparkman, Chairman Subcommittee on Housing,
Senate Committee on Banking and Currency,
July 26, 1966."
The assumption becomes an unfulfilled prophecy:
Property owners reduce expenditures for property maintenance
and repair wherever possible.
Tenant and community morale collapse.
Constructive community leadership is denied creditability.
4
If it be assumed that power of state and local government to
regulate housing condition in order to preserve life, health and
safety is a prior charge on all interest in property, then the equation
as to the feasibility of property repair to minimum standards is simply
whether the gross rent roll will cover current operating expense,
current taxes, and principle and interest payments to cover the cost
of repair.
Antecedent mortgage commitments as well as the equity investment
are irrelevant to the issue. Where mortgagees and property owners,
contrary to existing assumptions, are convinced of this contingency,
their conduct concerning property repair and maintenance would be
altered significantly. In this circumstance it would not be necessary
that public action be asserted against each property in a given neighborhood
in order to reverse the prior assumptions.
A formidable case exists therefore for selection of a few
neighborhoods in which after complete inventory of structure condition,
ownership, mortgage debt, and prior Bieter of code enforcement, an
experimental program be undertaken by the appropriate local public
authority, working in collaboration with the local community, in which
a'number of the possible sanctions were enumerated were employed.
The effort is attractive in: (1) presenting a new attack upon the
syndrome of community decline and collapse; (2) offering promise of
reduced public expenditures by imposing costs upon non-conforming
properties; (3) generating increased volume compliance with minimum
codes and standards.
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Title
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Box 22, Folder 18, Document 24
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/114b7611e60d5a1a7d1a8178ba49e496.pdf
9129b954a9c403ecdca84463c2e7cb76
Scripto
Transcription
A written representation of a document.
ADDENDA TO THE SUMMARY REPORT TO PRESIDENT
Nei ghborh ood centers
1. Su bstitute the word " commu n ity 11 for " ci ty" where it appears .
( Purpose : t o i mpl y a broader universe than just the local
gove rnment .)
2 . As a pos s ible a lternative to h a v i n g t h e d e monstra tion c a rri e d
out b y t he federal i nter - agenc y group : Have one or all o f the
f ederal agenci es provide a "pool" or an 11 e a rmark i n g 11 of funds
for the de monstration, but establish an indep e ndent Advis ory
Council to c arry the prog ram out 9 or to recomme nd to the
a ppropr iat e a g e ncy or a g enc ies h ow it should b e c arried out.
( Que stions: would legi sl a tion b e r equire d? would the imp e tus
for re concilin g differing req u irements a mong the fe deral
a g encies be lost? would the leverag e ne c essary to g et
a p propriate state and local a g enci es t o par ticipate be
lost?)
Home own e rshi n by the poor
1.
Ins e rt t h e f ollowing af t er t h e 2nd par agraph:
The pro gram should b e v iewe d as a mea n s of ass i s t i ng
p e opl e and a c h i e ving huma n v a lue s, r a t h e r than as a d e vic e for
i mprovi ng b u ilding con ditions a n d maint en a n c e . It s h ould als o
avoid 11 l oc k ing " pe opl e into bad i n vestments, financial burdens
t h ey c a nnot manag e, and slum ghetto es only.
�
Text
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ADDENDA TO THE SUMMARY REPORT TO PRESIDENT
Neighborhood centers
1. Subdstitute the word “community” for "city" where it appears.
(Purpose: to imply a broader universe than just the local
eovernnent. )
2. As a vossible alternative to having the demonstration carried
out by the federal inter-agency group: Have one or all of the
federal agencies provide a "pool" or an "earmarking" of funds
for the demonstration, but establish an independent Advisory
Council to carry the vrogram out, or to recommend to the
appropriate agency or agencies how it should be carried out.
(Questions: would legislation be required? would the impetus
Tor reconciling differing requirements among the federal
agencies be lost? would the leverage necessary to get
neers State and local agencies to participate be
Lost?
Homeownershiv by the voor
1. Insert the following after the 2nd paragraph:
The program should be viewed as a means of assisting
people and achieving human values, rather than as a device for
improving building conditions and maintenance. It should also
evoid “locking" people into bad investments, financial burdens
they cannot manage, and slum ghettoes only.
Dublin Core
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Title
A name given to the resource
Box 22, Folder 18, Document 25
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/cb8a36d5d300ce392579506b763ff682.pdf
4b8fe385056f296b7d1848b1ef897a5c
Scripto
Transcription
A written representation of a document.
June 2, 1967
MEMORANDUM
To:
Members of Task Force
From:
Richard C. Leone
The attached papers are not ·meant to be improvements on
the Ylvisaker draft of May 15~ 1967 .
They are simply
attempts to include more material fo·r discussion on
June 8.
Work on other proposals is going forward.
Mike Danielson
and I are working on a revised structure (really two parts race and income segregation and a related section of fiscal
and institutional capacity).
We hope to have most of these
in detailed outline form at the next meeting.
The enclosed, of course , are confidential.
d
l ecut ive Se cre t ary
�
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Text
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June 2, 1967
MEMORANDUM
Tos Members of Task Force
From: Richard C. Leone
The attached papers are not ‘meant to be improvements on
the Ylvisaker draft of May 15, 1967. They are simply
attempts to include more material for discussion on
June 8.
Work on other proposals is going forward. Mike Danielson
and I are working on a revised structure (really two parts =
race and income segregation and a related section of fiscal
and institutional capacity). We hope to have most of these
in detailed outline form at the next meeting.
The enclosed, of course, are confidential.
heseutive Secretary
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Title
A name given to the resource
Box 22, Folder 18, Document 26
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/8aa31cc6e180f4d7cbb2bea60cd6e66b.pdf
0b259bee8ecda98b59923bed013f0dbb
Scripto
Transcription
A written representation of a document.
CONFIDENTIAL
6/2/67
DRAFT L\1TRODUCTION
America and its conuntmities are changing with tmsettling rapidity.
t~st of this change has been healthy; and most of the problems it
has caused tend to evoke their mm solutions.
This country - despite
its transitional strains and its freely-voiced compla:ints - has an
i.rnmense capacity for self-correction.
There is always a temptation - and a pressure - to over-react:
to give equal ear to every complaint, to chase off after every problem,
and to wind up with congeries of programs ,~hich may slow up rather than
_ accelerate the nation's natural and long-run capacity for self-correction.
Evidence is accumulating that such has already happened in the
federal govenunent' s response to urban problems over the past twenty
years.
These have been years of improvisation, and probing.
have been constructive.
On balance, they
But neither in scale nor impact have they caught
up with the dimensions and force of the nation's urban trends and
developing problems.
The time has come to move from improvisation over a wide front, and
in sorretirnes contrary directions, to an effort
a) lvhich is aimed at selected problems of transcending ir.Jportance;
b) which 1s of a scale large enough to make a difference;
c) which is not dissipated by conflictD1g policies and administrative
arrangements;
�.
2
d) which offer powerful incentives to state, local and private
initiative, ancl thereby move toward a "steady state" of
continuous problem-solving;
e) which begin to erase the public's skepticism -- its growing
feeling that public programs are not to be taken seriously,
that 111ore is promised than will ever be delivered.
The Task Force believes that the first priorities for public action
m
urban An,erica are related to the grmving disparity between city and
suburb. -· A disparity which is expressed in the segregation between white
and black, the gap between income in central city and in suburb, the
uneven economic growth in our metropolitan areas, and in our capacity
for response to the problems of central cities.
Today too many of our central cities have become the political
jurisdictions and geographic areas in which accident, design and even
progress have housed an inordinately high proportion of our problem
people and an outsized share of our problerrLc; of public policy.
The Task Force on cities decided early in its deliberations to
focus on these urban disparities.
W
e have
identified t wo major approaches.
The first is a straight-
fonvard discussion of urban segregation by r ace and income and some
recommendations intended to alleviate its ef f ects .
The second involves
a s eries of re commendations - some modest, some sweeping - intended to
increase sharpl y our abilit y to deal with urban prob l ems creativel y,
rez!X'ns ivel y, and on a l arger scal e t han i s presently possible.
�...
3
We also have found it convenient to acld three smaller sections to
our report; on :innovation, the model cities program, and an agenda for
future study.
While we recolillnend that Federal action in these areas be altered,
refocused and expande<l, we aclmit two general caveats.
1.
That our knmJledge of how to deal Hi th urban problems both
physical and human is still limited.
That a period of intensive and
well-managed experimentation is a necessary first step in any large
scale strategy for altering the patten1 of urban development.
2.
While we believe that the sorts of programs we are recommen<lin[!
should have the hi~hest national priority, lve recognize how politically
and practically <lifficult it is to spend a larger portion of our resources
on the urban poor and the central cities.
This is true fundamentally
because the present system of urban <levelopment works quite well for
most people.
i',!ost Arnericans are happy in suburbs, they have done well
in the system, and they look fon.rard to doing better.
on the disaffected and they are few.
society, however, is enonnous.
Our report focuses
Their potential impact on Ar.terican
�
Text
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CONFIDENTIAL 6/2/67
DRAFT INTRODUCTION
America and its conmunities are changing with unsettling rapidity.
Most of this change has been healthy; and most of the problems it
_has caused tend to evoke their own solutions, This country - despite
its transitional strains and its freely-voiced complaints - has an
immense capacity for self-correction.
There is always a temptation - and a pressure - to over-react:
to give equal ear to every complaint, to chase off after every problen,
and to wind up with congeries of programs which may slow up rather than
_accelerate the nation's natural and long-run capacity for self-correction,
Evidence is accumulating that such has already happened in the
federal government's response to urban problems over the past twenty
years,
These have been years of improvisation, and probing. On balance, they
have been constructive, But neither in scale nor impact have they caught
up with the dimensions and force of the nation's urban trends and
developing problems.
The time has come to move from improvisation over a wide front, and
in sometimes contrary directions, to an effort
a) which is aimed at selected problems of transcending importance;
b) which is of a scale large enough to make a difference;
c) which is not dissipated by conflicting policies and administrative
arrangements;
d) which offer powerful incentives to state, local and private
initiative, and thereby move toward a "steady state" of
continuous problem-solving;
e) which begin to erase the public's skepticism -- its growing
feeling that public programs are not to be taken seriously,
that more is promised than will ever be delivered.
The Task Force believes that the first priorities for public action
in urban America are related to the growing disparity between city and
suburb. - A disparity which is expressed in the segregation between white
and black, the gap between income in central city and in suburb, the
uneven economic growth in our metropolitan areas, and in our capacity
for response to the problems of central cities.
Today too many of our central cities have become the political
jurisdictions and geographic areas in which accident, design and even
progress have housed an inordinately high proportion of our problem
people and an outsized share of our problens of public policy.
The Task Force on cities decided early in its deliberations to»
focus on these urban disparities.
We have identified two major approaches. The first is a straight-
forward discussion of urban segregation by wee and income and some
recommendations intended to alleviate its effects, The second involves
a series of recommendations - some modest, some sweeping - intended to
increase sharply our ability to deal with urban problens creatively,
responsively, and on a larger scale than is presently possible.
We also have found it convenient to add three smaller sections to
our report; on innovation, the model cities program, and an agenda for
future study,
While we reconmend that Federal action in these areas be altered,
refocused and expanded, we admit two general caveats.
1, That our knowledge of how to deal with urban problems both
physical and human is still limited. That a period of intensive and
well-managed experimentation is a necessary first step in any large
scale strategy for altering the pattern of urban development.
2. While we believe that the sorts of programs we are recommending
should have the highest national priority, we recognize how politically
and practically difficult it is to spend a larger portion of our resources
on the urban poor and the central cities. This is true fimdamentally
because the present system of urban development works quite well for
most people, Most Americans are happy in suburbs, they have done well
in the system, and they look forward to doing better. Our report focuses
on the disaffected and they are few. Their potential ee on American
society, however, is enormous,
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Title
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Box 22, Folder 18, Document 27
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
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fafac8695b48ae10ac0edef45d762e35
Scripto
Transcription
A written representation of a document.
- · - - - -- - ·- 1
-
DRAFT:LEONE 6/2/67
The overriding problem of our cities is segregation by race
and income.
There are no urban solutions of any validity which do
not deal directly with the questions posed by this segregation.
The facts are these:
23% of the total population of our
central cities is Negro, and 35% of these Negroes have incomes in
the poverty range.
Within five years, assuming present population
trends and allowing for current levels and even greater effectiveness
of ameliorative public programs, the proportion of Negroes to central
city population will rise to 28%, with a constant percentage
remaining in poverty.
By 1978, both proportions will be 35%.
By 1983, our central cities population will be 44% Negro, nearly
two-fifths of them poor.
The se are percent age s of the tot a l population of all our central
cities.
By 1973, at least ten of our major cities will be
predominantly Negro; by 1983, at least twenty, including Chic ago,
Philad e lphi a , Cleveland, Detroit, etc.
To rep ea t, the s e are our proj ections of which will h a ppen if
(1) pres e nt popul a tion trends continue , (2) ther e are no sudd en and
surprisi ng change s in public attitud es, and (3) curr ent governmental
polici e s and l ev e ls of spending r emain in force.
The Task Forc e b e lie v e s that a significant cha nge in (1)
despit e the notoriou s unr e li a bility of popul a tion tr ends - is
unlike l y.
We be li eve tha t change s in (2) a lso a re bo t h unl i ke l y
and unpred i c tabl e .
�2
Given these uncertainties our report focuses on (3) - current
governmental policies
and
level of spending - • We recognize
Government action is only one element in the process of urban decline.
And, while it may not be a sufficient condition for turning the
tide, it is certainly a necessary one.
The sheer rnagnitude of the problem is staggering.
Our population
models tell us that simply holding the size of central city ghettos
to their present size will require movement of approximately 600,000
Negroes a year into predominantly white suburbs.
Such a figure would
represent from ten to fifteen times the present rate of Negro outmigration.
Our crude cost calculations for providing a minimlD!I
acceptable level of social services in all central city ghettos
indicate Federal expenditure patterns of staggering and unlikely
proportions.
We believe that to alter these projections signific2. .ntly,
quantum leaps will have to be taken in public policy and levels of
spending.
Yet without a massive effort disparities bet ween white
and black, affluent and poor , city and suburb will grow l arger.
The probability for potentially dangerous confrontation which divides
American society along these lines Hill continue to increase.
1•:e
<lo not presw:ie to calculate how hi gh that probability is but we
are quite sure that it is high enough to be cause for urgent concern.
It is appa:;:ent then that segregation by race and income in our
great metropolitan areas is outstripping whatever we are now doing
to offset it.
Yet the Task Force recognizes that .American society
�3
ID
1967 is not prepare<l to pay the costs of a fully integrated urban
society.
We lmow that integration will not be possible in the life
of this Administration, but we suggest a place to start - a line
of policy which will build towards a future breakthrough.
In surrnnary, the Task Force identifies as a problem of the
greatest national urgency the growth and poverty of centrc}-1 city
ghettos and the related race and income segregation in urban areas.
1)
We believe that this situation already provides a driving
force in urban decline and that its iraportance is increased
by the unequal patten1 of urban development.
2)
We are convinced that a dramatic confrontation between white
and Negro, affluent anc.1 poor, growth and decline already is
building in most of our urban areas.
3)
In the absence of state, Federal and local action on a wide
front accompanied by enlightened private activity, these
problems will grow larger, more dangerous to American society
and increas ingly diff icult to solve .
We therefore r ecommend a series of strat egi es designed to:
1.
Increase indivi dual access to jobs, education, i ncome , hous ing
and other social services .
2.
Increase r ac i al and income integration in metropol itan areas .
3.
Increase the proportion of middle-class population, especially
Negro, in cent ral cities.
4.
Increase the ab ility of new immigrants t o adjust to urban life.
�4
·. Priorities
1.
The specific proposals based on these policies, indeed the
policies themselves, rnay often seem to be in conflict.
We believe that these contradictions are more apparent than
real, and that the very limits of our present ability to
achieve any of the above goals on a large scale makes it
imperative for us to move in several directions at once.
2. While it is clear that a large scale of effort is required we
believe that the first stage must focus on experimentation and
refined efforts in many areas of present activity.
3.
lfuile a truly integrated and stable urban society is our
ultimate goal, we believe our ability in the short run to
attain massive integration is quite limited.
lve, therefore,
place an especially high priority on those policies designed
to create a larger middle class with a stake in the city.
We seek methods of increasing stability as the proportion
of Negroes in cities continues to increase.
4.
As a minimum, we believe that it is a matter of the highest
national urgency to attempt to "integrate" ghetto populations
into the mainstream of American life by raising their income
levels and the leve l of accessible social services.
5.
We have ordered our recommendations in response to a crude
attempt at cost effectiveness - feeling that sor:1e attempt at
systematic ordering was better than none at all.
�s
6.
\~e have seen no value in asking the President to spend his
urban resources, political and financial, on proposals Hhich
are unacceptable to American society in 1967; ive of course
urge him to continue his leadership in educating the Arrerican
people to the necessity of accepting our central cities ghetto
residents as full participants in American society.
Only such
a development can offer hope for our cities and the people \\'ho
live in them.
We intend our proposals as far as possible to be consistent with .
the following principals:
1.
Federal assistance should be tied not to institutions but to
individuals.
2.
Federal assistance to state ancl localities should be designed to
strengthen the role of political executive 1\•herever possible.
3.
The administration of programs should be carried out at the
lowest level poss i ble and Hith the greatest flexibility possible.
4.
Programs designed to up- gralle ghe tto life should also make a
contribution to integration - if possible.
5.
NeH institutions should be created only tm<ler the most unusu2.l
circumstances.
Proposals
We have divided our proposals into two sections.
The second are
those which are in some Hays most des irable and ambitious but which
seem to us to be only long-nm possibilities.
The first are meant
to be the first stage - . perhaps about five year - developnents in
ur ban policy r.1aking.
�
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Text
Any textual data included in the document
DRAFT: LEONE 6/2/67
The overriding problem of our cities is segregation by race
and income. There are no urban solutions of any validity which do
not deal directly with the questions posed by this segregation.
The facts are these: 23% of the total population of our
central cities is Negro, and 35% of these Negroes have incomes in
the poverty range. Within five years, assuming present population
trends and allowing for current levels and even greater effectiveness
of ameliorative public programs, the proportion of Negroes to central
city population will rise to 28%, with a constant percentage
remaining in poverty. By 1978, both proportions will be 35%.
By 1983, our central cities population will be 44% Negro, nearly
two-fifths of them poor.
These are percentages of the total population of all our central
cities. By 1973, at least ten of our major cities will be
predominantly Negro; by 1983, at least twenty, including Chicago,
Philadelphia, Cleveland, Detroit, etc.
To repeat, these are our projections of which will happen if
(1) present population trends continue, (2) there are no sudden and
surprising changes in public attitudes, and (3) current governmental
policies and levels of spending remain in force.
The Task Force believes that a significant change in (1) -
despite the notorious unreliability of population trends = is
unlikely. We believe that changes in (2) also are both unlikely
and unpredictable.
Given these uncertainties our report focuses on (3) - current
governmental policies and level of spending -. We recognize
Government action is only one element in the process of urban decline.
And, while it may not be a sufficient condition for turning the
tide, it is certainly a necessary one.
The sheer magnitude of the problem is staggering. Our population
models tell us that simply holding the size of central city ghettos”
to their present size will require movement of approximately 600,000
Negroes a year into predominantly white suburbs, Such a figure would
represent from ten to fifteen times the present rate of Negro out-
migration. Our crude cost calculations for providing a minimun
acceptable level of social services in all central city ghettos
indicate Federal expenditure patterns of staggering and unlikely
proportions.
We believe that to alter these projections significantly,
quantun leaps will have to be taken in public policy and levels of
spending. Yet without a massive effort disparities between white
and black, affluent and poor, city and suburb will grow larger.
The probability for potentially dangerous confrontation which divides
American society along these lines will continue to increase. We
do not presume to calculate how high that probability is but we
are quite sure that it is high enough to be cause for urgent concern,
It is apparent then that segregation by race and income in our
great metropolitan areas is outstripping whatever we are now doing
to offset it. Yet the Task Force recognizes that American society
in 1967 is not prepared to pay the costs of a fully integrated urban
society, We know that integration will not be possible in the life
of this Administration, but we suggest a place to start - a line
of policy which will build towards a future breakthrough.
In summary, the Task Force identifies as a problem of the
greatest national urgency the growth and poverty of central city
ghettos and the related race and income segregation in urban areas,
1)
2)
3)
We believe that this situation already provides a driving
force in urban decline and that its importance is increased
by the unequal pattern of urban development.
We are convinced that a dramatic confrontation between white
and Negro, affluent and poor, growth and decline already is
building in most of our urban areas,
In the absence of state, Federal and local action on a wide
front accompanied by enlightened private activity, these
problems will grow larger, more dangerous to American society
and increasingly difficult to solve,
We therefore recommend a series of strategies designed to:
Increase individual access to jobs, education, income, housing
and other social services.
Increase racial and income integration in metropolitan areas,
Increase the proportion of middle-class population, especially
Negro, in central cities,
Increase the ability of new immigrants to adjust to urban life.
Priorities
1.
The specific proposals based on these policies, indeed the
policies themselves, may often seem to be in conflict.
We believe that these coiitradictions are more apparent than
real, and that the very limits of our present ability to
achieve any of the above goals on a large scale makes it
imperative for us to move in several directions at once.
While it is clear that a large scale of effort is required we
believe that the first stage mist focus on experimentation and
refined efforts in many areas of present activity.
While a truly integrated and stable urban society is our
ultimate goal, we believe our ability in the short rium to
attain massive integration is quite limited. We, therefore,
place an especially high priority on those policies designed
to create a larger middle class with a stake in the city.
We seek methods of increasing stability as the proportion
of Negroes in cities continues to increase,
As a minimum, we believe that it is a matter of the highest
national urgency to attempt to "integrate" ghetto populations
into the mainstream of American life by raising their income
levels and the level of accessible social services.
We have ordered our recommendations in response to a crude
attempt at cost effectiveness - feeling that some attempt at
systematic ordering was better than none at all.
6. We have seen no value in asking the President to spend his
urban resources, political and financial, on proposals which
are unacceptable to American society in 1967; we of course
urge him to continue his leadership in educating the American
people to the necessity of accepting our central cities ghetto
residents as full participants in American society. Only such
a development can offer hope for our cities and the people who .
live in then.
We intend our proposals as far as possible to be consistent with
the following principals:
1, Federal assistance should be tied not to institutions but to
individuals,
2. Federal assistance to state and localities should be designed to
strengthen the role of political executive wherever possible.
3. The administration of prograns should be carried out at the
lowest level possible and with the greatest flexibility possible.
4, Programs designed to up-grade ghetto life should also make a
contribution to integration - if possible.
5. New institutions should be created only under the most unusual
circumstances,
Proposals
We have divided our proposals into two sections. The second are
those which are in some ways nost desirable and ambitious but which
seem to us to be only long-run possibilities, The first are meant
to be the first stage - perhaps about five year - developments in
urban policy making.
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Title
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Box 22, Folder 18, Document 28
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/d9eed984a655fa6142648d0196985f96.pdf
9fea56aac6c88ca10250f9d08540a96d
Scripto
Transcription
A written representation of a document.
DRAFT:6/2/67
RECOMMENDATIONS
The Task Force recommends a number of specific proposals
designed to offer incentives for the integration of Negroes with
whites, to r a is e the leve l of socia l services to the poor within
the central city or to create a more stable middle-class society
within the city.
Naturally there is a great deal of overlap
between the obj ec t ives of each of th es e r e commendation s.
None o f
them are pure "integration" or "up-lift" or "civiliza_tion" programs.
We have made some judgments on the practica lity of each of thes e
recommendations .
They a r e divided into t h os e which might be poss i bl e
under present social circumstance s and those which de pend on more
fundament a l changes in the attitude s of the Ame rican people.
Empl oyment is the mos t meaningfu l, d i r ec t and permanent means
of providi ng the poor Amer ic an with a n opportun ity f or f ull
participation in soc i ety .
The following r ecommenda tions r egarding
employment ar e int end ed f or the short run, say the next f ive y ears.
1.
The major prob l em with fed era l ly supported manpower programs
is fr agmenta tion bet ween Cabine t agencies and within Departments .
Th is pro li ferati on of manpowe r programs , oft en with a spec i a l t arge t
group for each program, only compounds the difficulty of any city or
agency has i n de s igning and impl ementing a compreh ens i ve a nd
comprehensible employment and tra ining effort.
The Task Force recommends the consolidation of present l y
s e parated manpowe r progr ams into a sing l e compreh e nsive manpower
grant.
This move would a llow deve lopment of sufficient loca l
�2
manpower programs tmder the aegis of a single agency to
absorb the important functions of recruitment, selection and processing,
training, placement and follow-up of the poor. A first step would be the
consolidation of those programs administered by the U.S. Department of
Labor including institutional training, on-the-job training, neighborhood
youth corps, concentrated employment program, and the employment service.
Strong incentives for cooperation with vocational rehabilitation, and OEO
employment operations should be explicit in the lceislation.
2.
Tn the absence of sigpi f"ic:ant consolid~ri on ma.nnower _programs,
the T~sk Force recorrnnends an e).TJ,msion and n ~focusinr; of the on-th~-i ob
traininQ_oro r.r am
tn
Drovi de higher subsidies to privat e inclustrv to under-
take the traini.nQ of the poor.
It has become clear that without the
close cooperation anJ participation of privat e industry t hat permanent
and meaningful employment will not r esult from even excessive employment
·and training e:x11endi turcs.
Reimbursement for training cost should be
doubled and perhaps quadrupl ed and the 2Ci \\'eeks presently allowed should
be expanded to a f ull year.
OJT should provide for a gr eat er s t aff for
job devclopnent and for counsel ing and follow-up aft er placement in a j ob
training pos ition.
3.
O.Jr i s r.1os t r el evant in the devel opr.1cn t of cornrncrc i al Md manu-
facturing jobs for t he poor in the area of the centr al city.
In order
to cor:ipcnsat e for t he decline of these jobs in t he city t he Task Force
reco1:nnends an e:x.-pansion in public enployment - the Task Force r ecommen<ls
an expansion in the new careers idea in puhlic er:1ployrnent such as
�3
embodied i n the Scheuer 2..memlment to t}1e Econoa ic Onoorttmi t v Act.
This program combines the advantages of providin.g entry level employment
for the poor with meaningful grading in ,wrk and professional training.
When operate<l successfully it serves the goal of enrichment as well as
that of assisting in the creation of a more stab le middle class in
central cities.
This recomrnendation also t akes into account the dramatic
expansion in service related employr.1ent in the p ublic sector.
4.
The Task Force is i mpressecl by the nl.lra!ber of emplo~ent
opportunities lost to central city residents bocause of their lack of
access to the neh·er centers of employment in t he rnetropolitclll area.
The
HUD finm1ced clefi1onstration in the Watts area 0£ Los Angeles has indicated
the .important relationship between deficient t nmsportation to those sites
and the willingn e ss and ability of area residenrts to accept employment and
training.
1\'e recommend an expans ion in the nlffifiler o f such pro i ec t s in
major metropolitan areas which would include e i tt her n ew mass transit route s
or subsidized f ares .
S.
The Task Force r e comr1cncls a j oint effort hv FUD cinLl the Department
of Labor to negotiat e t he national model a,fTr eC'TTTmt for emo loyment ,vith
the building trade unions which would permit I aryge scal e slum r ebuilding
experiments to make ~r enter us e of s l um l abor .
\We recogn ize that tlti:x the
impl ementation of thi s r ecommendation woul d not :s olve any signi f icant
pr oporti on of the employment prob l em but it woul,d have useful symbol ic
val ue i n the ghettos of cent ral cities .
�4
It is becoming increasingly apparent that integration of economic
classes is a critical factor in educational achievement.
The recommendations
of the Task Force reflect this relationship.
1.
Any
program of Federal aid fnr elementary and secondary school
construction shoul<l offer incentives for f8cilities designed to increase
the integration of students.
For example, "bonus" funds would be
avaihble for educational parks within cities, suburban exhange schools
and for consolidated school districts.
In addition, funds for the
modernization and replacement of older school plants in central cities .
should be offered.
2. To help increase the mobilitv of the ghetto child and to make
possible a variety of new educational jnstitutions, we recommend a nror.ram
of educational subsidies for low-incone children which would be administered
as scholarships for use at any approvecl elementary and secondary educational
institution.
Those funds whid1 did not have the effect of integrating
poor children with affluent children, would be available for compensatory
educational programs in the central cities.
Presumably, some parents may
wish to have the "scholarships" aid in the creati on of new institutions
which might be operated by universities, corporations or neighborhood
groups.
The Task Force reconunends the follm·d ng program(s) to assist returning
servicemen who come from low-incor.1c backgrow1cls.
IDE!~TIFIED AS A GAP)
GJ\P - HOUSI NG RECOl',IT·,If:.i'\lDATION
GAP - OTIIER EDUCATIO;-!AL RECS
(TO BE FILLED IN LJ\TER -
�5
There are a number of recommendations wfo',i ch the Task Force
feels are clearly beyond the capacity of the. l~erican political
system at the present time , either because oE ,their outright
integrating objective or b ecaus e of insti tut-j:.®nal de fects not like ly
to be resolved in the immediate future.
1.
Thes..e include:
A progr am which would operat e much lL ike the GI Bi 11 of
1
. Ri ghts which would pl a c e ent itl ements in the fuands of the poor to
maximize personal choice in sel ecting educa t frn~a l, training and
employment assistance .
The funds could b e us;e.d by the ind ividual
to gain certi f ica tion in r egul ar educational nmst i tutions or f or
trdning on the job with the employer receivf.rJi,g r e imburs ement for
his training cost s .
The great advantage of t:fuis a pproa ch is in
avoiding the s eeming l y endl ess t ang l e of r eferra l s , de l ay s, and
· insens itivity encount er ed in the pre s ent, f r agpent ed system.
2.
A progr am of bonu ses ti ed directly to the degr ee of
int egration a ch i eved in a s chool district, up t o 25% Negr o enro llment.
Such a program wou ld focus very cl early on i ntegrating c~rrent l y
all -whit e suburban districts.
3.
An expanded h ousing subs idy progr am ,;hich wou l d grant or
l oan funds to Negroes for down-payments on hom2 s outside the central
ci t y, et~ .• .• .•..•••••
4.
The dev e lopment of metropolitan-wide institutions which
'Qould be r esponsible for opening housing a nd e:z::.p loyment opportuniti e s
for c entra l city Negroe s.
To facilit a te incre a sed housing for Negroes,
the Federal government might inst itute a revolv ing development fund
which would b e available to the s e institutions ..
e tc •••...
�
Text
A resource consisting primarily of words for reading. Examples include books, letters, dissertations, poems, newspapers, articles, archives of mailing lists. Note that facsimiles or images of texts are still of the genre Text.
Text
Any textual data included in the document
DRAFT:6/2/67
RECOMMENDATIONS
The Task Force recommends a number of specific proposals
designed to offer incentives for the integration of Negroes with
whites, to raise the level of social services to the poor within
the central city or to create a more stable middle-class society
within the city. Naturally there is a great deal of overlap
between the objectives of each of these recommendations. None of
them are pure "integration" or "up-lift" or "civilization" programs.
We have made some judgments on the practicality of each of these
recommendations. They are divided into those which might be possible
under present social circumstances and those which depend on more
fundamental changes in the attitudes of the American people.
Employment is the most meaningful, direct and permanent means
of providing the poor American with an opportunity for full
participation in society. The following recommendations regarding
employment are intended for the short run, say the next five years.
1. The major problem with federally espported manpower programs
is fragmentation between Cabinet agencies and within Departments.
This proliferation of manpower programs, often with a special target
group for each program, only compounds the difficulty of any city or
agency has in designing and implementing a comprehensive and
comprehensible employment and training effort.
The Task Force recommends the consolidation of presently
separated manpower programs into a single comprehensive manpower
grant. This move would allow development of sufficient local
2
manpower programs under the aegis of a single agency to
absorb the important functions of recruitment, selection and processing,
training, placement and follow-up of the poor. A first step would be the .
consolidation of those programs administered by the U.S. Department of
Labor including institutional training, on-the-job training, neighborhood
youth corps, concentrated employment program, and the employment service.
Strong incentives for cooperation with vocational rehabilitation, and OEO
employment operations should be explicit in the legislation,
2. In the absence of significant consolidation nahaven tbe o tans;
the Task Force recommends an exnansion and refocusing of the on-the-iob
training program to vrovide higher subsidies to private industry to under-
take the trainins of the poor. It has become clear that without the
close cooperation and participation of private industry that permanent
and meaningful employment will not result from even excessive employment
and training expenditures. Reimbursement for training cost should be
doubled and perhaps quadrupled and the 26 weeks presently allowed should
be expanded to a full year. OJT should provide for a greater staff for
job development and for counseling and follow-up after placement in a job
training position.
3. OJT is most relevant in the development of conmercial and manu-
facturing jobs for the poor in the area of the central city. In order
to compensate for the decline of these jobs in the city the Task Force
reconmends an expansion in public employment - the Task Force recommends
an expansion in the new careers idea in public employment such as
embodied in the Scheuer amendment to the Economic Opportunity Act.
This program combines the advantages of providing entry level employment
for the poor with meaningful grading in work and professional training.
When operated successfully it serves the goal of enrichment as well as
that of assisting in the creation of a more stable middle class in
central cities. This recommendation also takes into account the dramatic
expansion in service related éuployient in the public sector.
4, The Task Force is impressed by the number of employment
opportunities lost to central city residents because of their lack of
access to the newer centers of employment in the metropolitan area, The
HUD financed demonstration in the Watts area of Los Angeles has indicated
the important relationship between deficient transportation to those sites
and the willingness and ability of area residents to accept employment and
training. We recommend an expansion in the number of such projects in
major metropolitan areas which would include either new mass transit routes
or subsidized fares.
5. The Task Force reconmends a joint effort by HUD and the Department
of Labor to negotiate the national model arrecment for employment with
the building trade unions which would permit Iarse scale slum rebuilding
experiments to make greater use of slum labor. We recognize that this the
implenentation of this reconmendation would not solve any significant
proportion of the employment problem but it would have useful symbolic
value in the ghettos of central cities,
It is becoming increasingly apparent that integration of economic
classes is a critical factor in educational achievement. The recommendations
of the Task Force reflect this relationship.
1, Any program of Federal aid for elementary and secondary school
construction should offer incentives for facilities designed to increase
the integration of students. For example, "bonus" funds would be
avaihble for educational parks within cities, suburban exhange schools -
and for consolidated school districts. In addition, funds for the
modernization and replacement of older school plants in central cities.
should be offered.
2. To help increase the mobility of the ghetto child and to make
possible a variety of new educational institutions, we recommend a program
of educational subsidies for low-income children which would be administered
as scholarships for use at any approved elementary and secondary educational
institution, Those funds which did not have the effect of integrating
“poor children with affluent children, would be available for compensatory
educational programs in the central cities. Presumably, some parents may
wish to have the "scholarships" aid in the creation of new institutions
which might be operated by universities, corporations or neighborhood
groups,
The Task Force recommends the following program(s) to assist returning
servicemen who come from low-income backgrounds, (TO BE FILLED IN LATER -
IDENTIFIED AS A GAP) |
GAP - HOUSING RECOMENDATION
GAP + OTHER EDUCATIONAL RECS
There are a number of recommendations wihich the Task Force
feels are clearly beyond the capacity of the American political
system at the present time, either because of their outright
integrating objective or because of institutional defects not likely
“6 be resolved in the immediate future. These include:
1. A-program which would operate much Like the GI Bill of
.Rights which would place entitlements in the fhands of the poor to
maximize personal choice in selecting educatiq@nal, training and
employment assistance. The funds could be used by the individual
to gain certification in regular educational finstitutions or for
training on the job with the employer receivimg reimbursement for
his training costs. The great advantage of this approach is in
avoiding the seemingly endless tangle of referrals, delays, and
‘insensitivity encountered in the present, fragmented system.
2. A program of bonuses tied directly to the degree of
integration achieved in a school district, up to 25% Negro enrollment.
Such a program would focus very clearly on integrating currently
all-white suburban districts.
3. An expanded housing subsidy program sshich would grant or
loan funds to Negroes for down-payments on homes outside the central
City, CC. ccrsescceene
4. The development of metropolitan-wide institutions which
would be responsible for opening housing and exxsployment opportunities
for central city Negroes. To facilitate increased housing for Negroes,
the Federal government might institute a revolving development fund
which would be available to these institutions. etc.ee.e.
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Title
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Box 22, Folder 18, Document 29
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/8c5deedd2397c76762aac9039368c943.pdf
328f56f20e0a0a967534ff6f97ff9251
Scripto
Transcription
A written representation of a document.
,,
·----Jtme 2, 1967
MHDMNDUM
I -
To:
Task Force Members
From:
Richard C. Leone
Downs, Macinnes, Frederic and I had a long anc.l rambling session with
As sistant Secretary of HUD Charles Ilaar and his deputy. The following
t wo portions of our discussion may be of interest to the Task Force.
1. It's quite clear that the metropolitan development plans of HUD
Jo not t ake t he ghetto an<l dispersion into accmmt. The reasons for
this ar e not a l ack of interest or understanding of the problem. It
is simply that the metropolitan programs themselves are "a weak reed"
t o carry the heavy burden of integration. Our discussions brought out
the unremarkable f act that we would be likely to lose our metropolitan
programs if we attempted to force integration through the use of them.
2. I t is gener ally agreed that a more promising route for approaching
the r.1Ctropolitan aspects of integration is to the use of the states
or providing the cities with special leverage on suburbs. To discuss
onl y the state example here: it appears much more likely that a political
executi ve r esponsive to pr essures f rom Negroes and indeed to pressures in
eener al will be more like ly to work on the kind of problems we are
inter ested in. We should be thinking here of the urban governors of the
lar ge nor theast ern and mi d-we stern states who are undoubtedly somewhat
r espons ive t o the problems of central cities. These areas include a
lar ge proporti on of t he cities we arc most concerned about.
In short , our fee l ing was t hat placing the responsibility for some of
these movements in populat i ons (even by t he most rotmdabout means ) would
be most l ikel y t o have a payoff i f we depended upon political execut i ves.
I think that one of the principal aJvant ages we' ve seen in our discussion
of metropolitan approaches t o the prob l em goes beyond the fee l ing that
metropolitan-wide soluti ons are rational. Some of us have seen the
me tropolitan unit as less responsive t o the ant i -int egrati on pressures just as the courts arc less responsive than the Congress. The problernp
of course, is that the courts exist an<l metropolitan bodies do not.
This has led us in turn to suggest that in round ·11one" we might create
such bodies working with the "winners" such as water and sewer grantsp
etc., and, then, in round "two" ask them t o take on some of the tasks
of integration. My reaction to this is based largely on the experience
�2
with authorities in the New York Metropolitan region. They too have
taken on the winners but no one has yet figured out a way to force
them to take on some of the losers (the c01mnuter railroads, for example).
This is not meant to say that we should leave our metropolitan development
corporation, netropolitan services corporation, etc., out of the final
report but that we should think about them a bit more in the perspective
of what are the most effective and promising ways of building something
larger than a city and to the integrat~on plblem.
.
Ii
Exe '
.
. /,
ecretary
�
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June 2, 1967
MEMORANDUM
To: Task Force Members
From: Richard C, Leone
Downs, MacInnes, Frederic and I had a long and rambling session with
Assistant Secretary of HUD Charles Ilaar and his deputy. The following
two portions of our discussion may be of interest to the Task Force,
1. It's quite clear that the metropolitan development plans of HUD
do not take the ghetto and dispersion into account, The reasons for
this are not a lack of interest or understanding of the problem. It
is simply that the metropolitan programs themselves are ''a weak reed"
to carry the heavy burden of integration. Our discussions brought out
the unremarkable fact that we would be likely to lose our metropolitan
programs if we attempted to force integration through the use of them.
2. It is generally agreed that a more promising route for approaching
the metropolitan aspects of integration is to the use of the states
or providing the cities with special leverage on suburbs. To discuss
only the state example here: it appears much more likely that a political
executive responsive to pressures from Negroes and indeed to pressures in
general will be more likely to work on the kind of problems we are
interested in. We should be thinking here of the urban governors of the
large northeastern and midwestern states who are undoubtedly somewhat
responsive to the problems of central cities, These areas include a
large proportion of the cities we are most concermed about.
In short, our feeling was that placing the responsibility for some of
these movements in populations (even by the most roundabout means) would
be most likely to have a payoff if we depended upon political executives,
I think that one of the principal advantages we've seen in our discussion
of metropolitan approaches to the problem goes beyond the feeling that
metropolitan-wide solutions are rational, Some of us have seen the
metropolitan unit as less responsive to the anti-intcgration pressurcs =
just as the courts are less responsive than the Congress. The problem,
of course, is that the courts exist and metropolitan bodies do not,
This has led us in turn to suggest that in round "one" we might create
such bodies working with the "winners" such as water and sewer grants,
etc., and, then, in round ''two'' ask them to take on some of the tasks
of integration, My reaction to this is based largely on the experience
with authorities in the New York Metropolitan region, They too have
taken on the winners but no one has yet figured out a way to force
them to take on some of the losers (the commuter railroads, for example),
This is not meant to say that we should leave our metropolitan development
corporation, metropolitan services corporation, etc., out of the final
report but that we should think about them a bit more in the perspective
of what are the most effective and promising ways of building something
larger than a city and to the integration p blem.
)
|
ecretary
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Box 22, Folder 18, Document 30
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/4367d7b4316056955e429e7ff1499e44.pdf
c72f5f0cca543167a6be19acc4ca8b33
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J uc1e l E- ,
2._.. o:n :
Richa _
-_ 9.6 7
C. ~ec~2
.::.·_-_c ::.cs2C:. &:ce .. a jar portioas
c::
,.: 2 realiz- th t sc~11e of th1...s1...
·c' - d _aft r epo::-L
2.;:::;
s~ill in a crude fore
- ·c·.-,e:.y s~-:.ould g .:.ve eve:.:,·c,:_~ sc::-.2tr iag to t 1.ink about
,:ic:.: _-:
O'i'l
betweE:-t now and :'hu..:-sc:ay .
d::aft 3nd should have
&
cle&: er
We wi 11 b e rE:v::. s ~ :--_::;
nd perhcps ~ore r efi .~c
_, _>y for our r:1ccting in W shir.gt:on .
Execut ive Secret ry
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Text
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Text
Any textual data included in the document
To: Members of Task Force
From: Richard C. Leone
anclosed are major portions
ize that some of thes
ind work on between now and
ft and should have a
Lac ara
copy for our meeting in Wash
of the draft report.
€ ave still in a crude form
‘put they should give everyone something to think about
Thursday. We will be revising
cleaner and perhaps more refined
ington.
—
Dublin Core
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Title
A name given to the resource
Box 22, Folder 18, Document 31
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/d5eb0159879eede6590cdeb6f614d1f1.pdf
5679f3667d4abfb2f0725b8d997fc2b2
Scripto
Transcription
A written representation of a document.
L
TABLE OF CONTENTS
1.
Letter of Transmittal
2.
Introduction
3.
Problem Statement
4.
Strategy for Meeting Problem
I.
(?)
Increasing our knowledge of
solutions to _urban problems
II.
Federal action to strengthen state
and local ability for meeting the
problem
III.
oi urban disparities
Focusing and increasing the level
of Federal. assistance directed at
urban disparities
IV.
Reforming the administration of
Federal urban pr?grams to provide
simplification fl e xibility and
decentralization
V.
Increasing the prospects for
integration in metropolitan areas
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deal d ~rec t ly w:th the que s tio~s pcsed by this se~re~ at ion.
7he racts are th2s e :
of th es e Negroes h ave i::·,,::.:::_~e:s
c 2~t ~~ 1 ci~ies is ~eg~o , and
o:: E.::1.2 liorE.tive pub l i c prog ra::is, th e prop ortion. of Negroes ·- -· _. __--.t::..-a l
city ~C)Llat ion wi ll rise to - - ---
, ,·,i t h
a _ _ _ _ _ percentag~
By 19'i8, be ::·__ pro :Jo:::-t i o;:1s will be
3y 1~33 our c e~trel city popula ti on wil:
j e
The se a re ? er c enta2;e s-o f the total po~ulatio~ of ail
By 1973
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le ast ten of our ma jor citi es wil l be ?re~c~ 143.215.248.55 16:58, 29 December 2017 (EST)t!y
Xeg ro ; by 1983 , at l east t w2nty, inc l uding Chi c ago , Philad el143.215.248.55 16:58, 29 December 2017 (EST)
Clevc.~3:1.c, Detroit and Eel t i more .
s~~c e A=er 1can ~ i nori t y g r ou~s t r a ~itio~ally have sough t and won
I~ s c:-:".e cases their asc.er,_dency was
~ur ~2~o rt discuss e s this se g r2 sa tio~ as it affects Nesroes.
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e:--: peri2llce b.as bee::i a hea ltl1y 011e for ou:r- pluralis ;i :ic politic 2 l
·sys :: e:-;: .
G.ispers:ion
~e groes .
We therefore ~esr
ttEt
th e
____
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2~1ci
CGETI 72 S
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-
in c 1~v li~e a~d ~c ~i tical
pr ob&~i lity of this con f rontEtio~ is but we are c ertain that it is h i g~
2nou3h to b e a cause for concern.
Its pe;tential d an3 e rs li e· in t :,e follcw ing:
1.
The growin3 d is affection nnJ aliena tion o f Negro ghetto
r2.s ic 2nt s 2.nd incre as ing ..ii li tancy ,,nich r esLl ts, to gether with
i~crea sing viol ence in citi es .
2,
The still po:-1e rful fo:::- c e o f ot::t - rnigration by whit e :r,ic:c:..c-
fro:.:i
4.
city.
The in~b ility o~ raoderate ?O litica l l ea~ership t o respo~c
t o th e pressu~es o f larg e r a~d l a rger poor populations .
�__
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3
Of t:.e ~ eg:r:oes ,-1ho live
ci~ies not only because it i s ~or&ily ri ght and not only because of
Th e c. e:-::.::..:-_-.:s o:E
uh ict-. u lt :;_ ,,i.s.te ly 1:-1i ll t est seve::.-ely t he_ v alu2s o f Ar:-.er_ic.sn s oe: i c.'.::y .
Integra tion> 1r it does notiing else, ~ay help to r educ e : 2nsions .
- ·-
l&rger integr a tion w~ich
-:.:.:st cc::ie i n. the futu:c2 .
~oce~s t e ll u s t ~a t s i ~ply h o l d~n~ the s i ze of c e n:~nl citv ~~e t:os
6JO,O0O ~egroes a year i ~to predcmi~an: l y ,~i~e su~urb s.
Ct..:.t --- ~~ g r- c.t i C:l .,
Cur c r~2e cost c a~c~lctio~s fo~ prov id i ng ev e~
rc1i2ir:-_;_.:_m .scce:_:,tabl e level
or
2
soci&l se:..-v ic s s 1n all centr-21 city g'.ic::t to s
i ·c.dica te f e deral expenditure:: ?at:t e:c11s cf georr:etric c..r:.d un l ike ly
Ev2~y avc il sb l e in~ic&t o r of
he deterio r2t in ; c o~~etitive posi~ion
_L
�1.
,
L·r
o~ tt e te~tr~I c~tv (th2r2 are o~ c ourse subst anti a l dif~er~nces
descriptive of Los Anse l cs ).
citi es are l agging beiind t~c rest of the nation by a
S pe ci fical ty:
~etail 2sta blish~ents
by 95% for th e rest of t he ~ation, b~t by only 41% i n citi~s .
- ?2r ca? ite inco2e chang es in city relativ2 to suburb.
- ?rcdict eC: joo
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~ r 143.215.248.55s
or public a ttitudes .
Su ch c t a~g e s , ho~ever , a r e b ot h u ~lii2 ly
~. :e
r e c: ogn.iz2
�5
It is a pparent tha t s egr esotion b; r a ce and inca~e i n our
to c ::'fset it .
sore than laws and fed e ril polici e s , but we suggest t~e place to
In sur;i:r.ary, t he Ta sk Force icec1t i fi2s 2.s n p::cob l e!:: of . th G
g ::- 22.test n2t icnai urgency U1 e :;rowt:::. a,1d ? Ove r 'c.y of c e:-,tral c:: ·.:;:
.)
W2 b eli e v e th.=-.t this situa tic1n al:::- cady p::-.· ovide s a driv in,;
=o::c e i n u rban dec l ine and t h at it s effect is - increased
0y t :.,e u:1~c,u2.l patteri'. o:: u r tm1 d2velo?cent .
2. )
'.,J2 E.::.- 2
co, ,vinced tha t e. d rc.r,,a t i c co:-if :cont at ion b et~veen
~ l r e e.dy i s bui lding in ~ost of ou r urb a n ar e as .
3)
~n the absence of st2. t 2; fec2ra i a~d loc a l 2.ct ion on a
th ~se prob l ems will grow l ~r~cr , mor e dangerou s to Arncr ic rn
soc i e t y 8~d i ~creas i ng ly c i ff ~cult to solv e .
·/.:
�6_
We therefore recommend a series of strategies designed
to:
1.
Increase individual access to jobs, education,
income, housing and other social services.
2.
Increase racial and income integration in
metropolitan areas.
3.
Increase the proportion of middle-class population,
especially Negro, in central cities.
4.
Increase the ability of new immigrants to adjust
to urban life.
5.
Increase the ability of all levels of governments
to deal with these problems.
Meeting th e goals will be costly and difficult.
It will
require, in our judgment, a well 6rganized process of innovation,
focusing resources at scale , moving towards increased
flexibility and strengthening th e position of mayors, some
governors, urban universities and others who can be counted
as · urban alli e s.
Our strategy for urban chang e and the
recommendations which flow from it is designed to overcome
five critical limits or present abilities for meeting urban
goals.
�,
7
1)
Capacity is limited by difficulty of effecting
metropolitan integration directly.
2)
Capacity is limited by city and state fiscal
and administrative weakness.
3)
Capacity is limited by the dispersion and low
level of Federal assistance to cities.
4)
Capacity is limited by Federal procedures,
program practices, centra~ization, an~ inflexibility.
5)
Capacity is limited by the state of the art for
solving urban problems.
The five sets of reco~me ndations which follow are
intended to outline a strategy which will increase
significantly th e ability of Federal, state and local
governments to respond to the problems posed by urb an
segregation and disparities.
�L
,
I.
Increasing race and income integration in urban areas
The Problem
Of all the problems the Task Force has addressed, none is
more vexing than the question of devising effective strategies
to integrate metropolitan areas.
We nonetheless believe that
the highest priority must be given to integration.
Without it,
ghetto families will be denied the opportunities enjoyed by the
urban majority; they will be forced to live in the least attractive
housing at increasing distances from the growth sector of the
urban economy; and the problems of a disaffected minority
will be concentrated in the ceritral cities.
Although improving the standard of living is absolutely
essential if ghetto residents are to move into the mainstream
of _Americ an life, it is illusory to beli eve that enrichment
alone will guarantee int egra tion.
The residential patt e rns of
every American city and metropolitan area document the fact
that income does not provide Negroes with the sam e freedom of
choice . that other Ame ric ans enjoy in th e urban housing mark et .
Equally important, the dec entralized political system of the
metropoli s employs l and us e and ot he r public controls to limit
sev ere ly hou s ing opportuniti es in s uburbia for a ll lowe r income
families.
A prime imp ediment to the dispersion of th e ghetto is th e fact
th at larg e numb e rs of city dwell ers and s ubu rbanites are oppo se d
to resid en tial inte gration and integrat e d education.
In th e
�6
2
central cities, the opponents of integration usually have more
influence at City Hall than the residents of the ghetto.
In the
suburbs, the Negro has no political voice; and the local
political system employs a variety of devices to satisfy its
constituents' desire to exclude Negroes in particular, and
lower income families in general, from their neighborhoods.
As a practical matter, an integration strategy must encompass
the metropolitan area.
Given the projected ghetto growth rates
and the likelihood of Negro majorities in a number of major
cities, integration cannot be accomplishe d within the confines
of the central city.
In fact , an integration strategy which
excludes the suburbs would only serve to hasten the exodus of
white families from the centr a l cities.
Anothe r r eason for d ev e loping disp e rsion strat eg ies in a
me tropolit an context is th e fa ct th a t th e hou sing marke t f unc tions ove r an entire metropolitan area.
Operating within a
local rath e r th an me tropolitan cont ext, federal housing programs ,
especially tho se aimed at th e di sadv antaged, h ave don e littl e
to foster disp e rsion.
In fact, more oft en than not, these
programs hav e encoura ge d r es id enti a l s egrega tion.
· Few me tropolitan a r eas h av e governmental arrangements which
would permit th e dev e lopment and implementa tion o f a me t r opol itanwid e int eg ration strategy.
Ev en fewer are popul ated by a
significant numb e r of s ubu rban ites who have demonstrated a po s itive
interest in an integrat e d metropo l i s .
In s t ead, most metropol i t an
�3
areas are governed by highly decentralized political systems.
Local governments of small scale control the vital parameters
of community life - the schools, land use, and the tax base.
Highly responsive to their relatively homogenous clientele
and sensitive to threats to local autonomy or the tax base,
most suburban governments show little interest in assuming any .
responsibility for the general welfare problems of the metropolis.
Efforts to create metropolitan governments have been
spectacularly unsuccessful.
Moreover, political realities and
the procliviti es of white middle class reformers have led almost
all me tropolitan governme nt plans to focus on service and physical
resource problems.
The Task Force knows of no metro proposal
that gives s e rious attention to the problems of th e ghetto.
Nor is there any evidence that the few metropolitan governments
creat ed in the past two decades have used their broad e r jurisdiction s to attempt to foster th e integration of th e metropolis.
Federal efforts to encourage metropolitan planning and
coordination also have avoid e d the policy ar eas most like ly to
affect the pattern of residential segr ega tion.
Substantial
progress ha s b een ma d e during th e past few years tow ar d securing
regional approach es to transportation, air pollution, and
water s upply .
Con sp icuously absent fro m this
list are
l
p r o grams that mi ght b e u sed to promote integration, s uch as
publi c hou si n g, re nt s u p pl eme nt s, a nd a id to e duc a tion.
Th e
�4
sad truth is that the emerging metropolitan institutions are
concerned almost ~xclusively with the problems of suburban
development -and white middle class families in cities and suburbs.
Unless there is a radical change in the outlook of these planning
and review agencies, they are likely to widen the gap between
city and suburb.
Finally, open housing legislation has had minimal impact
on integration in the metropolis.
In the absence of nation al
legislation, there is a bewildering variety of state and local
fair housing codes .
These nearly always exempt the most common
form of suburban housing - the single fimily dwelling.
Another
major weakness is the cumb e rsome, case by case approach based on
.
individual complaints, a proc ess which requires l ega l sophistication
and/or support which usually
dweller.
is unavailable for the ghetto
The federal government 's r e cord in this area is also
unimpr essive - neither FHA nor VA have move d aggressively to
secure maximum impact from the 1962 executive orde r banning
discrimin ation in hou s ing financed by federally guaranteed
mortg ages.
Rec ommendations
1)
National performance standards (s ee Section IV) should
stress int ~g rationas an int eg ral aspect of general developm en t
programs.
2)
Inc entiv e gr ant s ( see Se ction IV) should be u se d to
to encourage genera l d eve lopment p rograms for e ntire
�5
metropolitan areas which would tie federal support for suburban
improvements to ~rogress toward ending the racial and income
imbalances between cities and suburbs.
3)
Some form of incentive grants, particularly for
metropolitan areas, should be tied specifically to housing and
education programs which foster integration, such as scattered
site public housing, educational parks, etc.
4)
Section 204 of the Demonstration Cities and Metropolitan
Development Act should be expanded . to cover programs that affect
housing.
5)
All federal hou si ng pro g r ams should place a strong
emphasis on disp er sion, including the relocation policies in
urban renewa l.
Federal mortgage policies should be developed
to e ncourag e the construction of lower cost housing units
through relating down payments, interest rates, and the repayment
periods to the cost of the unit.
Such a policy should includ e the
use of subsidi ze d ~ortgages where appropriate.
6)
A compr e hensiv e national fair hou s in g act with the
broad es t possibl e coverage should be e nacted.
An exe cutive
ord e r should b e is s ued prohibiting se g re ga tion in all forms o f
ho~ sing assisted dir ec tly or indir ec tly by a ny federal agency.
The order should b e positiv e ly enforced, using th e techniques
d e v e lop e d in the federa l government 's efforts to e liminat e job
dis c rimin a tion in al l
form s o f f e d e r a lly financ e d employm e nt.
�6
7)
The federal governme nt should stimulate the creation
of and provide fi~ancing for metropolitan development corporations which would undertake to provide integiated low-cost
housing outside of ghettos.
The federal government would pro-
vide initial working capital and extend long term credit from
a national revolving fund.
Such corporations would accumulate
land for integrated housing, provide assistance in job location
for out-migrants, and aid suburbs in preparing effective
education programs for new resid e nts.
8)
Because job opportunities are likely to open up faster
than hou s in g opportunities, we recomm e nd a pro g ram of transportation assist a nc e with the following ch a racteristics.
a)
Re sponsiv e to ch a n g in g loc a tions o f both jobs
and work e rs.
b)
Focused on initial p e riod o f "job findin g " and
"job holding."
c)
Tr a nsfer a bl e from on e individual to anoth e r
d e p e ndin g on n ee d .
d)
Non-co mp e titiv e with the private ma rk e t .
Wh e r e such tr a v e l is r e lativ e ly concentrat e d, this d emand can
be me t th r ou g h sub s idi ze d public transport a tion .
For mo r e
disp e rs ed tr a v e l from gh e tto r e sid e nc e s to suburb a n job s,
l
I
sho r t term pub licl y - ass i s t e d a utomobil e l ea sing ar r a n gem e n t s
will be ne e ded .
�7
9)
The Administration should realize that the greatest
potential fever for change in this area is the courts.
The Task Force urges the Administration to hasten the
inevitable Supreme Court rulings which will ban de facto school
. segregation and the employment of land use controls for social,
economic and racial discrimi~ation.
Given the revolutionary
impact of these anticipated rulings, it is not too early to
begin contingency planning to assure their speedy implementation
with a minimum of public disorder.
�II.
Federal action to strengthen city
for meeting the problem of urban disparities
Problem
Implementing the strategies for urban chan$e discussed in
this report depends ultimately upon actions taken by state and
local governments.
We assert that strengthening the positions
of governors and especially mayors will be of critical ·importance
in this process.
Their ability to deliver services is seriously
limited by administrative weakness and fiscal strain.
Yet they
are the only public officials with the potential authority
•1:I!
I:
necessary to effectively manage the large-scale attack on
I
I
urban problems which we believe is essential.
They too - and
I
our population projections indicate that this is certainly true
of mayors - will be under increasing pressures to respond to
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the fre_quent, now almost steady state, urban crisis of :11;· J :~verty
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an d segregation.
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The administrative problem breaks along the follo wi ng lines :
- Fragmentation of program responsibility among semiautonomous .agencies, often -reinforced by their counterpart s at
the federal leve l, bypasses and weakens the position of mayors
and gove rn ors.
- State and l oca l officials are under di rect and close
pressures to deliver and their high political mortality rates
indicate that delivery is enormously difficult in the present
system.
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- State and local government is in a disadvantageous
competitive position for directing talented, imaginative staffs .
The political executives management problems are compounded by
the lack of personal staff; there are few institutions analagous
to the executive office at the state and local level.
- Possibi l ities for a meaningful decentralization to
federal field offices are severely limited by the realities
of political authority in the federal system and by present
congressional-bureaucratic arrangements in Washington.
- Local officials must conduct an enormous numbe r of
negotiations with truncated federal agencies to receive any aid.
At the same time the cost of urban services is on the rise ..
We can expect increasing per capita costs for social services
and we ·can expect an increasing proportion of ci t y dwe l ler s
to require them.
The cities thus are caught in a process of
cumulative deterioration whic h can be r eve r sed on l y by s hif ts
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i n t he r esi dence o f poo r people or h i ghe r i ncome by city
r es i dent s.
The pr ob l em i s par ti cu l a rly a cu t e f or l arge cities.
During fi s cal year 19 65 , f or exampl e » muni c ipal expenditures
per capita were appr oximately three times as hi gh for cities
with populations exceeding 1 million as they were for communities
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with populations under 50,00 0 .
In short, we see the following
as critical limits on cities t o pay their own bills:
- Cities are under increasing demands for social services
while their revenue capabilities are increasingly inadequate
to pay for even existing levels of serviceso
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Social service costs are rising more rapidly than
costs in the economy.
- Some cities are already in danger of becoming
almost exclusively by peop l e who can simply not a ff ord to live
elsewhere and whose need f or services is very great.
- Problems of ra i sing additional revenue within juri sdictions such as cities are i mmense, due in part to the high
mobi l ity of resources between stat es and local it i es i n the
federal systems.
Cities are forced to rely heav ily on property
and consumption taxes, both of which are highly re gressive in
nature.
- The dependence on property· taxation on hous ing f or c i ty
revenue s may be a positive de t riment t o providing mo r e standard
unit s £ or the urban poo r.
Re commendati on s
1)
Re gard les s o f pas t fai lures t he popu l a t i on pro je c tions
and trends we fore s ee clear l y ind i c ate t hat most mayo rs and
ma ny urban governors, o f n ecessity, will be increasing ly
resp on sive t o the problems o f ci ty ghetto s.
Th ey can be the
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Pr es i den t's mos t i mp ort ant al l ies i n fulfilling our nat i onal
urban go al s.
They mu s t be the f ocu s o f any mean i ng f u l
decen t rali zat i on of the f ederal s y stem .
2)
In add i t i on to the fi scal flex i b i lity and d e cent ralizati on
recommended below, we u r_ge that presen t aid programs operate
through the political executive and not semi -autonomous bureaucracies.
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3)
To build toward a capability similar to that of the
federal executive office, w~. recommend direct gr-ants to mayors
and governors for staff assistants o~ city problems.
4) _ To increase the competence of state and local govern-
ment personnel we recommend increased federal assistance for
training and continued efforts in the direction of inter-governmental
exchanges of personnel.
5)
Legislation should be promoted permittirig state and
local governments · to waiv·e . federal tax resumption of securities
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in return for a federal grant equivalent to the federal taxes
collected on the . interest from such securities.
Some estimates
indicate that this could result in an added .6 to 1 billion
dollars per year.
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Federal assistance to cities should be significantly
increased; and the existing impediments to the effective use
of federal aid at the local level should be eliminated.
The
components of this recommendation are presented in detail' in
.Parts 111, ·1v, .-and V .- below.
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�DRAFT:LEONE:6/19/67
III.
Focusing and increasing the level of Federal
assistance to cities
The Problem
1.
Many of our present programs fail to reach
the central city poor with enough resources to make a
difference.
2.
Simple extension of present programs - leaving
effectiveness aside - to reach the central city poor would
cost in manpower, education, health, housing and legal
services ____ billion dollars a year.
3.
Unless we reach a scale of sufficient size we
will find as we have found in the past our efforts are
dis~ipated by trying to reach too many people, in too
many cities, with too many programs.
4.
Policy responsibility at the Federal level
must be focused in strengthened urban agencies.
Recommendations
The following programs are meant to focus resources
on increasing urban integration and enriching the lives
of those who remain in big city ghettos.
In each program
area, we have attempted to order our recommendations in
terms of some rough priorities and time phases with
employment having the highest overall priority .
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Our expertise in the following program areas is
limited.
We have listed only recommendations which
seem to us to be most relevant to an overall city
strategy.
Our suggestions are in no sense exhaustive.
We hope to:
Overhaul existing programs and redirect
existing resource commitments to
increase their impact on the ghetto.
Increase commitments in the most critical
program areas for implementing broad goals.
Develop new approaches to tackle those
aspects of ghetto enrichment and dispersion
not affected by existing programs.
Tie Federal assistance to disadvantaged
individuals where appriate.
1.
Employment
A.
The Task Force recommends the consolidation
of presently separated manpower programs into a single
comprehensive manpower grant.
This move would allow
development of sufficient local manpower programs under the
aegis of a single agency which would absorb the important
functions of recruitment, selection, and processing,
training, placem ent and follo w-up of the poor .
This st e p
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would include consoli dati on of those programs administered
by the U. S. Department of Labor including institutional
training, on-the-job training, neighborhood youth corps,
concentrated employment program in the employment service
with the Vocational Rehabilitation and OEO employment
operations.
B.
In the absence of si gnificant
consolidation programs, the Task Force recommends an
expansion and refocusing of the on-the-job training
program to provide higher subsidies to private industry
for training of the poor.
Reimbursement for tr aining
costs should be doubled and perhaps quadrupl ed and the
26 weeks presently allowed should be expanded to a full
year.
OJT should b e provide d with a greater staff for
job developmen t and for counselin g and follow-up after
placement in a job training position.
C.
In order to compensate for the declin e
of manufacturing and commercia l jobs in the city, the
Task Force r e commends an expansion in public employment
throu gh the n ew car eers idea as emb odi e d in the Scheuer
Ame ndment to the Economic Opportunity Act.
New careers
provides entry level employment for the poor with
meaningful upgrading in work and profes~ional training.
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D.
The Task Force recommends an increased
number of demonstration projects - of all types to test the important relationship between deficient
transportation to work sites and the willingness and
ability of city residents to accept training and employment.
E.
The Task Force recommends a joint effort
by HUD and the Department of Labor to negotiate a nation a l
mod e l ag r e ement for employme n t with th e build i n g tr a de
unions, which would permit lar ge -scale slum rebuilding
e xperiments to make gre a ter use of slum resid ents.
We
r e co gn ize th a t th e i mpl ement ati on of this r e comme nda tion
would not solve any signific ant proportion of the
employment problem but it would h ave useful symbolic
v a lu e i n the ghe tto s of ce ntr a l c ities.
The De p a rtm ent
of Commerce should be involv e d to reach similar agreemen t s
wi th employe r s in the c onst r uction industry.
F.
As a l on g-run possib i l i t y, we su ggest a
p r o gram whic h wou ld operate much like th e GI Bi ll of Rights
wh i ch would pl a ce e ntitl ements i n t h e ha nds of th e p oor t o
maximi xe persona l ch o i ce in selecting edu cational, t rainin g
and employment assistance.
Th e funds could be u sed by the
· ind i v i du a l to gain c ert ification in regul a r educat ion a l
institutions o r f or training on the j ob with the employer
receiving reimbu rsement f or hi s trai ning c os ts.
The great
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advant~ge of this approach is in avoidi~g the seemi~gly
endless tangle of referrals, delays, and insensitivity
encountered in the present, fragmented system.
2.
Education
A.
Any program of Federal aid for elementary
and secondary school construction should offer in_c entives
for facilities designed to increase the integration of
students.
"Bonus" funds could be available for
educational parks within cities, suburban exchange schools
and for consolidated school districts.
Funds should also
be included for the modernization and replacement of older
school plants in central cities.
B.
We recommend a program of educational
subsidies for low-income children which would be
administered as scholarships for use at any approved
elementary and secondary educational institution.
"Bonus" funds could be available for schools which are
integrated or are experimental.
C.
3.
Sizer recommendations (see paper)
Special recommendations for urban veterans
A.
We give the strongest endorsement to
Department of Defense Manpower programs, such as
. "Proj e ct 100,000" and "Project Transition" .
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B.
We recommend a stepped-up outreach
activities in the Veterans Administration to trace
those with the greatest need for assistance at the
point of separation and especially after separation.
C.
We urge FHA and VA loans to servicemen
and veterans to finance proposed or existing individually
owned on e -family units in pr~ects containing five or
more units.
D.
We recommend that VA be given a special
mandate and the capacity to assist ghetto v e terans in
obtainin g such urban skills as planning, social service
work and community developm e nts.
4.
Incom e mainten a nce and we lf a re
A.
Any well conceived strategy for the city
requires substantial increases in consumer demand.
City dwe llers ne e d a sustain e d and substantial upward
movement in payme nt lev e ls for
(1)
unemployment compensation
(2)
we lf a re p ayme nts
(3)
minimum wa ge
B.
The present welf a re syst e m must be
alt ere d t o make i t a mo re e ffe ctive instrume nt in de ali n g
with gh ett o depe nd e nc e .
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(1)
Altering AFDC man in the house
requirements to permit
(2)
Altering outside income requirements
to eliminate the in-effect 100%
income tax rate and thus encourage
C.
We should move towards having a l~rger
proportion and perhaps all welfare payments at the
Federal level.
Continued reliance on localities and
states for a share places an added strain on their
frequently regressive tax systems and inhibts the
development of more r e asonable national standards for
welfare.
S.
Public Facilities
A.
We urge greater use of the location of
public facilities - both Federal and Fede rally support e d as a lev e r in s e curin g a ctu a l int eg ration, op e n housin g
and employment opportunities.
Those facilities which can
be located in cities, especially community colleges and
hospitals, should b e consid e r e d a part of overall
dev e lopm e nt and city enrichme nt pl a ns .
Public employ me nt
for low-income groups should be related to any n e w
facilit y - includin g those in th e suburbs .
This n ew f ocus
o f re spo ns ibili ty s h oul d b e come a ma jo r conc ern d f t he
Se c re t aries o f HEW an d HUD .
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B.
The Department of Housing and Urban
Development should be given a primary role in
coordinating all Federal urban capital investment as
part of national integration and enrichment strategies:
6.
Housing
A.
To achieve integration there must be
continued emphasis on compliance with desegregation
guidelines in housing financed through the Federal
mortgage programs.
This is especially important in
suburban developments which will account for 90% of the
new housing ov e r the next 25 years.
The flow of resources into financing
housing is affected by interest rates, alternative
investment opportunities, and oth e r forces, some of which
are greatly influenced by Feder a l policy.
B.
Lower interest rates to stimulate a ~inimum
annu a l construction rate in housin g should be a national
objective.
Th e eff e cts of low interest rates on the
supply of low- and moderate-housing "swamps" the effects
of Federal "housing progr ams" as such .
C.
Investme nt inc e ntiv es such as t a x credits
and d e pr e ci a tion sch e dul es should b e a p pli e d t o hou s in g
in th e s ame way th a t th e y a r e a pp li e d to oth er c a pit a l
goo d s.
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Every mechanism for maintaining a constant flow of
investment into housing should be explored by the
Administration.
These might include the issuance of
longer term certificates at higher interest rates to
attract the investing power of pension funds and
insurance companies.
Certificates-should be issued
by the Federal National Mortgage Association.
D~
The Task Force recommends expanded use of
devices such as leased,scattered site public housing
rehabilitated through use of the "turnkey" approach with
purchase options for the tenants.
E.
Homeownership incentives for central city
ghetto resid ents simil ar to the Veterans' Administration's
no-down payment programs should be offer ed .
F.
The Task-Force recommends that the multi-
family mort gage operations be separated ;·from the present
Federal Housing Administration which would then b e
charged with insuring only single-family mortgages.
In the absence of such surgery, we believ e th a t the age
and inflexibility of most FHA officials renders any
alternative recommendation unworkable.
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7.
Special Recommenda tions on the Community Action Program_
a)
The Task Forc e believes the community action idea
is a major innovation in Federal programming and reflects
the emphasis on demonstration and experimentation which
is critical for increasing our problem-solving capacity.
The Community Action Program should be retained within
an independent OEO with its charter for flexible and
innovative programs.
b)
A first step toward employing performance criteria
in distributing scarce CAP funds should be taken.
These crit e ria should include the CAP's innovative
capacity, its ability to coordin a te other relevant agencies
and to op e rate its own programs.
c)
Demonstration funds should be incre a sed accomp anied
by ti ghter research controls applied to projects.
d)
Guid e lines to insur e CAP participation in Mod e l Cities
plannin g and execution should be promulgat e d.
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Th e dev e lopment of commun i ty action agencies as parts
of th e local politic a l and gove rnm ent a l s y st em should be
encour age d .
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IV.
Reforming the administration of federal urban programs to
provide simplification, flexibility and decentralization
The Problem
The American federal system is being slowly strangled by
the complexity of contemporary intergovernmental relations.
Cities and states are fighting a losing battle to extract ·
maximum advantage from a bewildering variety of federal assistance
programs.
Administrative shortcomings seriously compromise the
prospects of many of the imaginative federal programs developed
in recent years.
The Task Force has grave doubts about the
capacity of this over-burd ened system to manage the new efforts
needed to move th e ghetto resident into the mainstream of
American society.
By accident rath er than design, th e federal governmen t has
created an extremely categorical, fragm ented, and complic ate d
approach to urb an programming.
Each program area t ends to
develop its own set of sp ec ific program goals and controls, a
clos e r e lationship wi th a specialized clientei"e, and a narro w
perspectiv e on th e problems of cities and suburbs.
Because the
feder a l government seeks to achieve general policy objectiv es
through highly detai led pro gram controls, most federal programs
are characterized by an ov ercen tr aliza tion of detai l , administrative rigidity, long delays in processing applications, a multiplication of required cons ents , a failure to inno vate , and a
lack of responsiv e ness to speciali zed loc a l ne ed s.
Cities
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confront delay and confusion in the funding of their programs;
they witness an inability of federal agencies to work with
one another in making sense of federal programs in urban areas.
The burdens of an already overloaded system of intergoverrimental relations have been multiplied by the rapid expansion of
federal domestic prqgrams during the past seven years.
Most of
the new programs are categorical and involve detailed federal
program controls.
In an effort to advance laudable national
policy goals, such as metropolitan coordination and highway
safety, additional detailed requirements have been imposed on
existing programs.
The net effect has been to complicate further
the bureaucratic maze that stands between federal resources and
.urban problems.
The Task Force is especially concerned about the failure
of the federal government to build sufficient flexibility and
opportunities for state and local discretion and innovation into
the federal aid system.
Many of the problems of large city
ghettos are quantitativ e ly and qualitatively different from
those of the poorer neighborhoods of smaller cities .
Solutions
to many of our most vexing urban problems are neither obvious
nor universally applicable.
Yet relatively few fed e ral progr ams
permit the d eve lopmen t of locally-determined str ateg ies for
cities and metropolitan areas.
In its str ess on local innovation and flexibility, the
Model Citi es Program represents a welcome departure from the
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rigid programmatic approach.
By emphasizing systematic planning
and coordination of federal categorical grant programs, Model
Cities seeks to reduce overlap and dupl{cation of effort.
But
constituent-agency relations, formula grants, inflexible requirements, and specialized administrative practices tax the
ability of any city to tie these many disparate strands into
an effective program.
In addition, Model Cities program standards
are added to those required by the component programs without
any compensating simplication of the process whereby a~plications
for assistance are approved.
Innovation, flexibility, and
coordination are easily stymied by a process whose practical
effect is to pyr am id requirements, multiply consents, and
increase the time lag in bringing r e sources to bear against
problems.
The Task Force is impressed with neither the record nor the
potential of existing instruments for securing interagency
coordination of grant programs, such as Bureau of the Budget
intervention to resolve interagency conflict, interagency
committ ee s, the me tropolitan expediter, and HUD's convenor
order.
Th e Administration's experience with the community
action program and the neighborhood centers unhappily indic ates
that substantial coordination cannot b e achi eved at th e federal
level withou t substantial ch anges in the grant-in-aid me chanism .
The massive effort need ed to overcome the problems pos ed
by the ghetto will be financed l argely by some form of federal
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grant-in~aid.
To the degree that such grants are programmatic,
the Task Force is convinced that it is absolutely essential to
streamline and simplify the distributivi mechanisms.
Instead
of extending and expanding categorical aids, the Administration
should stress consolidation, decentralization, and flexibility.
In the opinion of the Task Force, however, fragmentation,
administrative complexity and rigidity, overcentralization of
de tail, inadequate coordination, and lack of innovation are
endemic to the programmatic approach.
Even the most imaginative
reforms are likely to have only a marginal impact if grant
programs continue to multiply at th e ir present rate.
Of course,
this growth rate would be accelerated if all the Task Force's
recommenda tions were transl ated into ind ividual grant programs.
An increased fed er al commitment to urban problems and a
national effort focused on ghetto def iciencies requires a
substanti al reorientation o f roles and responsibilities in th e
federal system.
The Admini s tration b egan this task with th e
development of th e Poverty and Mode l Citi es progr ams .
The Task
Force believes th e time has come to expand the application of
these conc ep ts through th e developme nt of a highly fl ex ibl e ,
loc~lly - based s yst em of grants-in - aid which substitutes general
purpos e assistance for progr amma tic gr ant s and n a tiona l p er formance standards for detailed program c ont ro l s.
It should a l s o b e not e d that the r ec ommend a tions h av e b een
design e d to p e rmit th e partial applic a tion of th e s e concepts.
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Thus, the implementation of these proposals may be staged over
time, with the most promising program areas selected for initial
treatment.
It also will be possible to retain _federal program
standards in those areas where such controls are deemed in the
national interest.
Recommendations
1)
Application, processing, and revi ew procedures should
be streamlined in all non-formula grant-in-aid programs.
The
goals of internal program reform should be: (a) to simplify
application procedures through the development of standardized
methods; (b) to r e duce sh~rply the time between application and
approval or rejection of a grant request; (c) to reduce multiple
cons ents; (d) to check the trend toward pyramiding requireme nts;
and ( e ) to employ standardized revi ew and audit procedures .
Responsibility for the implementation of this recommendation
should be lodg e d in th e Bureau of th e Budget.
2)
Gr ea ter u se s hould be made o f earmarking of grants to
facilitate the fundin g of programs lik e Mode l Cities and
community action which cut across pro gram and agency lines .
This dev ice should be u sed to enh ance the focu sing of fed e ral
res ou rces on ghetto problems.
3)
Whenever possible, new grant programs should b e merg e d
with exist ing programs .
Con so lidation of r e lat ed grant pro grams,
along the lin es of the Partnership in Health Act of 1966 , s hould
be giv en high priority.
Gr ant consolida tion reduc es the numb er
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of separate negotiations which any jurisdiction would have to
carry on in order to design relatively comprehensive local programs.
4)
Provision should be made for consolidated
applications
for two or more related grants administered within a single
department.
Such intra-agency grants would permit a state or
local agency to deal with a single representative of the
appropriate department wh en applyin g for r e lated gr ants.
Impl ement a t io n o f this r e comme nd a t ion r e qui res the e s tabli s hmen t
of an intra-agency grant office within each department, prefe r a bly
in the off ic e of the s e cret ary.
The intra-agency gr ant off i ce
woul d r e c eiv e and p roc ess the a ppli cati on for an i n tr a-age n cy
grant, coordinate th e revi ew of the application with th e
appropri a t e ag enci e s within th e d e p a rtmen t to insu re th a t
pro gram s t and a r ds we r e be ing me t, and a ct as the f ina l gr a n t in g
authority, subj e ct to appropri a te r ev i ew at the d ep a rtm e nt a l
leve l .
5)
Pr ov i sions s h ould b e made f o r c on so li dated app l ications
for two or mor e related grants administered by agencies in two
or mo re de p a rtments.
Such in ter- a ge n c y grants woul d p ermi t a
state or local agency ~o deal wit h a sing l e federal agency when t he
federal grants needed to finance a compreh ensive project are
adminis t ered by t wo or more depa rtm en ts.
Imp l emen t ation o f
this recommendation requires the d es ignation o f an agency to
rec eive application s for inter-ag ency grants, to coor din ate th e
review of the application with the appropriate agencies to insure
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that program standards are being met, and to act as the final
granting authority, subject to appeal by the appropriate
departmental heads.
The Task Force believes that the inter-
agency grant coordinating function should be assigned to the
same agency which is designated as the principal federal urban
agency, as recommended in Part III above.
Legislation to
implement this recommendation would not authorize the waiver
of statutory provisions such as eligibility for -grants, matching
ratios, or program duration.
6)
Performance standards should be substituted for detailed
program standards wherever feasible.
Standards should be simple,
general, quantifiable where possible, and applicable to a wide
variety of contexts.
Performance standards should relate to
general societal goals rather than to specific program objectives.
Thus, a housing performance standard might be the proportion of
substandard dwelling units, not the number of public housing
units.
National performance standards should focus on the
urban goals of integration and enrichment.
7)
The substitution of performance standards for program
controls should be accompanied by the pooling of funds in existing
grant programs.
An essential first step in pooling is the
establishment of functional pooling arrangements which permit
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the unrestricted use of funds in a general functional area, such
as housing, manpower training, health, or transportation.
In
housing, for example,public housing, urban renewal, and rent
supplement funds would be pooled, to be employed by the
appropriate local or state agency to implement a comprehensive
housing program.
All programmatic restrictions would be removed.
from the use of pooled funds; thus, funds derived from the
public housing program might be used to finance .rent supplements,
rehabilitation, code enforcement, or some other locally devised
strategy designed to overcome housing deficiencies.
8)
Where federal funds are functionally pooled, the basic
requirement for eligibility should be a comprehensive program 1n
the functional area which relates local deficiencies and needs to
the ~ppropriate national performance standards.
Comprehensive
housing, manpower, health, or transportation programs should be
developed by the appropriate local or state agency.
Comprehensive
programs would specify local deficiencies in terms of national
standards, set forth program goals to meet the national standards,
and indicate in a general way the projects to be undertaken to
reach the program goals during the life of the comprehensive
program.
When all funds functionally pooled are from programs
within a single agency or departm ent, th a t agency or departm e nt
should approve the comprehensiv e program and monitor its impl e mentation .
When functional l y pooled funds are drawn from two
or more departm ents, the principal federal urban agency recommended
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in Part III should approve the comprehensive program and monitor
its implementation.
9)
Provision should also be made for the pooling of federal
funds across functional lines.
Unde r this type of arrangement, some
or all of the federal aid flowing into a neighborhood, municipality,
county, metropolitan area, or state would be pooled, with all
programmati c restrictions removed from the use of the pool ed
funds.
Eligibility for general pooling should be based on the
preparation by the appropriate local or state unit of a general
development program based on national performance standards.
General development programs would be similar to the comprehensive functional programs discussed in the previous recommenda tion, except that their scope would be substantially bro ader .
General dev e lopment programs would b e approved by the principal
federal urban agency recommended in Part III, which would also
monitor the implementation of the general development program.
10)
To facilitate the preparation of compr e hensive functional
programs and general development pro grams, federal technical
assistance and pl a nning aid should be expanded.
In the case o f
compr ehens iv e function a l progr ams involving two or more a ge nci es ,
and in all instances of general development program prep a ration,
technic a l assist an c e and planning aid should be funn e l e d throu gh
th e p r incip a l fe de r a l urb an age ncy a s r e commend e d in Pa rt III.
As a first step toward implemen tin g t he previou s recomme nd a tions,
t he federa l governmen t s houl d f ina nce the prepar a t io n of a
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number of comprehensive functional programs and general development programs by a variety of local and state units.
11)
The federal government should initiate a program of
. general purpose assistance to local and state governments.
We
recommend that two types of general purpose grants be developed
deficiency grants and incentive grants.
a)
Deficiency grants are general purpose formula
grants designed to provide supplemental federal assistance
for local units, the ma gnitud e of which would be related
to need and capability.
An equalization formula to
accomplish this purpose would be based on population, per
capita incom e , tax bas e , tax effort, and perhaps other
measur e s of social, economic, and infr as tructure d ef iciencies.
Defici en cy grants could be used by the r e cipi e nt local or
state unit for any public purpose consistent with a general
developm ent program.
Eligibility for deficiency grants
would be det e rmin e d by the princip a l f ede ral agency recommended
in Part III through its approval of a general development
progr am.
Given th e magnitud e of th e gh e tto probl em , th e
Task Force r e comme nds an initial outlay of$
for defici ency grants, which would provide$
billion
per gh et to
dwell er.
b)
Inc en tiv e grants are gen e ral purpose grants
distributed by the principal federal agency recommended in
Part III.
Incenti ve grants could be used to suppl eme nt pool ed
�,
11
funds ·or interagency grants.
The availability of general
purpose agency grants should enhance the ability of the
principal federal agency to promote inter-agency grants,
pooling arrangements, and comprehensive functional and
. general development programs.
A significant proportion
of incentive grants should be used to stimulate the prepara- ·
tion and implementation of general development programs which
give high priority to ghetto problems, especially integration.
�1
L
I
V.
Increasing knowledge of solutions to urban problems
The Problem
The Task Force believes that if this society were
ready to commit the resources required for its cities,
new technologies and knowledge could make our efforts
more effective and relevant than is presently possible.
We emphasize the advantages of the Federal government
as a funder, controller and evaluater of demonstrations
and experiments - an advantage which is readily apparent
in the aerospace industry.
This advantage is presently
being dissipated by fragmentation of problems by agency
mission, lack of long-term financing of experimentation
and basence of sensitive feedback mechanisms to influence
policy-making.
In addition, the efficiency of our
efforts to solve urban problems may be limited by . the
small scale of our programs and even demonstrations.
Recommendations
1.
The flexibility and emphasis on innovation
characteristic of the Model Cities Program should be
exploited by conc e ntrating resources - as far as possible on 4 or 5 cities and/or metropolitan areas capable of
implementing we ll-structured and cont r olled experiments.
To achieve this wo uld require at least the following:
�- -
2
-- Assignment of responsibility for the design
and evaluation of the experiments to the new Assistant
Secretary for Research and Development in DHUD.
-- Informal allocation of resources from a ge ncies
other than HUD, (for example, project demonstration
monies in HEW and Labor) for use in the selected cities.
-- An aggressive Federal role in providing
technical assistance to thes e. "key" cities'.
2.
The creation and fundin g of an institute for
basic urb an r e search, along the lines of RAND or IDA in
th e de fense area.
The institute should be Federally
funded, independent of day-to-day departmental control
and able to und e rt a ke long-term research projects.
· Initially, the institute would not undertake operation
or fundin g of action projects, but would concentrate on
basic rese a rch into urban economics, data collection and
analysis, etc.
3.
A stren gthen e d and be t t e r-financed demonstration
and exp e ri me nta t ion rol e for DHUD and its Assist a nt
Secr e tary for Re se a rch and Deve lopment .
This should
includ e th e abilit y to fin anc e long-t e rm proj e cts
ind ep enden t of f isc a l year r es trictio n s and deve lo pmen t
an d a c ti on p ro j ec t s in fi e lds other than h ousi ng.
A h i gh
premium should be p l aced on j oint funding with o ther
agencies for projects cutting across several service
sectors.
-
-
L.
�L
3
4.
The evolution of a developmental orgariization
which can undertake large-scale investments in new
systems, such as new housing ideas.
This institution
might be developed by the Assistant Secretary for Research
and Development in DHUD.
It should have the funds,
flexibility and authority to underwrite construction of
new types of schools or hospitals or houses on a scale
large enough to make a difference.
This agency also
could expend the developmental work done by OEO in basic
manpower and health iystems, or combine them with the
physical elements of a sector.
The first target of
large-scale development should be constructing more
efficient and flexible low-and moderate-income housing.
5.
The capacity of local and state governments to
undertake research and development should be increased
with the aid of positive Fed era l action.
Subsidies to
regional or urban universities are one means of achieving
this; financing of research staffs for governors and
mayors is another.
Federal programs, such as Model Cities
and Community Action, which stimulate innovative and
experimental action projects should be expanded as the
best hope ' for building local development capacity.
�L
I -
4
6.
We believe the natural advantage enjoyed by
the Federal government for financing and evaluating
research and development should be strengthened in
all departments.
Within department, R&D otitputs
should feedback to the Secretary to insure that R&D
projects affect on-going programs and policies and open
new directions.
Responsibility for monitoring government ~
wide urban R&D activity should be centralized either in
the Executive Office or in HUD.
Without centralizat i on,
th e r e sults of r e sear ch in one a ge ncy are not like ly to
become inputs in the policy-making of another.
�
Text
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Any textual data included in the document
L
TABLE OF CONTENTS
1.
Letter of Transmittal
2.
Introduction
3.
Problem Statement
4.
Strategy for Meeting Problem
I.
(?)
Increasing our knowledge of
solutions to _urban problems
II.
Federal action to strengthen state
and local ability for meeting the
problem
III.
oi urban disparities
Focusing and increasing the level
of Federal. assistance directed at
urban disparities
IV.
Reforming the administration of
Federal urban pr?grams to provide
simplification fl e xibility and
decentralization
V.
Increasing the prospects for
integration in metropolitan areas
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lhe:c e are no urb2.n solu ticns of ar...y va li2:.ty ,.~hicj:. c:i ~--..8t
'-- ---~'--------
deal d ~rec t ly w:th the que s tio~s pcsed by this se~re~ at ion.
7he racts are th2s e :
of th es e Negroes h ave i::·,,::.:::_~e:s
c 2~t ~~ 1 ci~ies is ~eg~o , and
o:: E.::1.2 liorE.tive pub l i c prog ra::is, th e prop ortion. of Negroes ·- -· _. __--.t::..-a l
city ~C)Llat ion wi ll rise to - - ---
, ,·,i t h
a _ _ _ _ _ percentag~
By 19'i8, be ::·__ pro :Jo:::-t i o;:1s will be
3y 1~33 our c e~trel city popula ti on wil:
j e
The se a re ? er c enta2;e s-o f the total po~ulatio~ of ail
By 1973
\_; •,:. .:.L.._
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Clevc.~3:1.c, Detroit and Eel t i more .
s~~c e A=er 1can ~ i nori t y g r ou~s t r a ~itio~ally have sough t and won
I~ s c:-:".e cases their asc.er,_dency was
~ur ~2~o rt discuss e s this se g r2 sa tio~ as it affects Nesroes.
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e:--: peri2llce b.as bee::i a hea ltl1y 011e for ou:r- pluralis ;i :ic politic 2 l
·sys :: e:-;: .
G.ispers:ion
~e groes .
We therefore ~esr
ttEt
th e
____
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2~1ci
CGETI 72 S
.! ::,
-
in c 1~v li~e a~d ~c ~i tical
pr ob&~i lity of this con f rontEtio~ is but we are c ertain that it is h i g~
2nou3h to b e a cause for concern.
Its pe;tential d an3 e rs li e· in t :,e follcw ing:
1.
The growin3 d is affection nnJ aliena tion o f Negro ghetto
r2.s ic 2nt s 2.nd incre as ing ..ii li tancy ,,nich r esLl ts, to gether with
i~crea sing viol ence in citi es .
2,
The still po:-1e rful fo:::- c e o f ot::t - rnigration by whit e :r,ic:c:..c-
fro:.:i
4.
city.
The in~b ility o~ raoderate ?O litica l l ea~ership t o respo~c
t o th e pressu~es o f larg e r a~d l a rger poor populations .
�__
- - -- -i- - - - ---·------ - - - -----_,,__ _____________ ____ -- -----·-
,.
!
3
Of t:.e ~ eg:r:oes ,-1ho live
ci~ies not only because it i s ~or&ily ri ght and not only because of
Th e c. e:-::.::..:-_-.:s o:E
uh ict-. u lt :;_ ,,i.s.te ly 1:-1i ll t est seve::.-ely t he_ v alu2s o f Ar:-.er_ic.sn s oe: i c.'.::y .
Integra tion> 1r it does notiing else, ~ay help to r educ e : 2nsions .
- ·-
l&rger integr a tion w~ich
-:.:.:st cc::ie i n. the futu:c2 .
~oce~s t e ll u s t ~a t s i ~ply h o l d~n~ the s i ze of c e n:~nl citv ~~e t:os
6JO,O0O ~egroes a year i ~to predcmi~an: l y ,~i~e su~urb s.
Ct..:.t --- ~~ g r- c.t i C:l .,
Cur c r~2e cost c a~c~lctio~s fo~ prov id i ng ev e~
rc1i2ir:-_;_.:_m .scce:_:,tabl e level
or
2
soci&l se:..-v ic s s 1n all centr-21 city g'.ic::t to s
i ·c.dica te f e deral expenditure:: ?at:t e:c11s cf georr:etric c..r:.d un l ike ly
Ev2~y avc il sb l e in~ic&t o r of
he deterio r2t in ; c o~~etitive posi~ion
_L
�1.
,
L·r
o~ tt e te~tr~I c~tv (th2r2 are o~ c ourse subst anti a l dif~er~nces
descriptive of Los Anse l cs ).
citi es are l agging beiind t~c rest of the nation by a
S pe ci fical ty:
~etail 2sta blish~ents
by 95% for th e rest of t he ~ation, b~t by only 41% i n citi~s .
- ?2r ca? ite inco2e chang es in city relativ2 to suburb.
- ?rcdict eC: joo
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~ r 143.215.248.55s
or public a ttitudes .
Su ch c t a~g e s , ho~ever , a r e b ot h u ~lii2 ly
~. :e
r e c: ogn.iz2
�5
It is a pparent tha t s egr esotion b; r a ce and inca~e i n our
to c ::'fset it .
sore than laws and fed e ril polici e s , but we suggest t~e place to
In sur;i:r.ary, t he Ta sk Force icec1t i fi2s 2.s n p::cob l e!:: of . th G
g ::- 22.test n2t icnai urgency U1 e :;rowt:::. a,1d ? Ove r 'c.y of c e:-,tral c:: ·.:;:
.)
W2 b eli e v e th.=-.t this situa tic1n al:::- cady p::-.· ovide s a driv in,;
=o::c e i n u rban dec l ine and t h at it s effect is - increased
0y t :.,e u:1~c,u2.l patteri'. o:: u r tm1 d2velo?cent .
2. )
'.,J2 E.::.- 2
co, ,vinced tha t e. d rc.r,,a t i c co:-if :cont at ion b et~veen
~ l r e e.dy i s bui lding in ~ost of ou r urb a n ar e as .
3)
~n the absence of st2. t 2; fec2ra i a~d loc a l 2.ct ion on a
th ~se prob l ems will grow l ~r~cr , mor e dangerou s to Arncr ic rn
soc i e t y 8~d i ~creas i ng ly c i ff ~cult to solv e .
·/.:
�6_
We therefore recommend a series of strategies designed
to:
1.
Increase individual access to jobs, education,
income, housing and other social services.
2.
Increase racial and income integration in
metropolitan areas.
3.
Increase the proportion of middle-class population,
especially Negro, in central cities.
4.
Increase the ability of new immigrants to adjust
to urban life.
5.
Increase the ability of all levels of governments
to deal with these problems.
Meeting th e goals will be costly and difficult.
It will
require, in our judgment, a well 6rganized process of innovation,
focusing resources at scale , moving towards increased
flexibility and strengthening th e position of mayors, some
governors, urban universities and others who can be counted
as · urban alli e s.
Our strategy for urban chang e and the
recommendations which flow from it is designed to overcome
five critical limits or present abilities for meeting urban
goals.
�,
7
1)
Capacity is limited by difficulty of effecting
metropolitan integration directly.
2)
Capacity is limited by city and state fiscal
and administrative weakness.
3)
Capacity is limited by the dispersion and low
level of Federal assistance to cities.
4)
Capacity is limited by Federal procedures,
program practices, centra~ization, an~ inflexibility.
5)
Capacity is limited by the state of the art for
solving urban problems.
The five sets of reco~me ndations which follow are
intended to outline a strategy which will increase
significantly th e ability of Federal, state and local
governments to respond to the problems posed by urb an
segregation and disparities.
�L
,
I.
Increasing race and income integration in urban areas
The Problem
Of all the problems the Task Force has addressed, none is
more vexing than the question of devising effective strategies
to integrate metropolitan areas.
We nonetheless believe that
the highest priority must be given to integration.
Without it,
ghetto families will be denied the opportunities enjoyed by the
urban majority; they will be forced to live in the least attractive
housing at increasing distances from the growth sector of the
urban economy; and the problems of a disaffected minority
will be concentrated in the ceritral cities.
Although improving the standard of living is absolutely
essential if ghetto residents are to move into the mainstream
of _Americ an life, it is illusory to beli eve that enrichment
alone will guarantee int egra tion.
The residential patt e rns of
every American city and metropolitan area document the fact
that income does not provide Negroes with the sam e freedom of
choice . that other Ame ric ans enjoy in th e urban housing mark et .
Equally important, the dec entralized political system of the
metropoli s employs l and us e and ot he r public controls to limit
sev ere ly hou s ing opportuniti es in s uburbia for a ll lowe r income
families.
A prime imp ediment to the dispersion of th e ghetto is th e fact
th at larg e numb e rs of city dwell ers and s ubu rbanites are oppo se d
to resid en tial inte gration and integrat e d education.
In th e
�6
2
central cities, the opponents of integration usually have more
influence at City Hall than the residents of the ghetto.
In the
suburbs, the Negro has no political voice; and the local
political system employs a variety of devices to satisfy its
constituents' desire to exclude Negroes in particular, and
lower income families in general, from their neighborhoods.
As a practical matter, an integration strategy must encompass
the metropolitan area.
Given the projected ghetto growth rates
and the likelihood of Negro majorities in a number of major
cities, integration cannot be accomplishe d within the confines
of the central city.
In fact , an integration strategy which
excludes the suburbs would only serve to hasten the exodus of
white families from the centr a l cities.
Anothe r r eason for d ev e loping disp e rsion strat eg ies in a
me tropolit an context is th e fa ct th a t th e hou sing marke t f unc tions ove r an entire metropolitan area.
Operating within a
local rath e r th an me tropolitan cont ext, federal housing programs ,
especially tho se aimed at th e di sadv antaged, h ave don e littl e
to foster disp e rsion.
In fact, more oft en than not, these
programs hav e encoura ge d r es id enti a l s egrega tion.
· Few me tropolitan a r eas h av e governmental arrangements which
would permit th e dev e lopment and implementa tion o f a me t r opol itanwid e int eg ration strategy.
Ev en fewer are popul ated by a
significant numb e r of s ubu rban ites who have demonstrated a po s itive
interest in an integrat e d metropo l i s .
In s t ead, most metropol i t an
�3
areas are governed by highly decentralized political systems.
Local governments of small scale control the vital parameters
of community life - the schools, land use, and the tax base.
Highly responsive to their relatively homogenous clientele
and sensitive to threats to local autonomy or the tax base,
most suburban governments show little interest in assuming any .
responsibility for the general welfare problems of the metropolis.
Efforts to create metropolitan governments have been
spectacularly unsuccessful.
Moreover, political realities and
the procliviti es of white middle class reformers have led almost
all me tropolitan governme nt plans to focus on service and physical
resource problems.
The Task Force knows of no metro proposal
that gives s e rious attention to the problems of th e ghetto.
Nor is there any evidence that the few metropolitan governments
creat ed in the past two decades have used their broad e r jurisdiction s to attempt to foster th e integration of th e metropolis.
Federal efforts to encourage metropolitan planning and
coordination also have avoid e d the policy ar eas most like ly to
affect the pattern of residential segr ega tion.
Substantial
progress ha s b een ma d e during th e past few years tow ar d securing
regional approach es to transportation, air pollution, and
water s upply .
Con sp icuously absent fro m this
list are
l
p r o grams that mi ght b e u sed to promote integration, s uch as
publi c hou si n g, re nt s u p pl eme nt s, a nd a id to e duc a tion.
Th e
�4
sad truth is that the emerging metropolitan institutions are
concerned almost ~xclusively with the problems of suburban
development -and white middle class families in cities and suburbs.
Unless there is a radical change in the outlook of these planning
and review agencies, they are likely to widen the gap between
city and suburb.
Finally, open housing legislation has had minimal impact
on integration in the metropolis.
In the absence of nation al
legislation, there is a bewildering variety of state and local
fair housing codes .
These nearly always exempt the most common
form of suburban housing - the single fimily dwelling.
Another
major weakness is the cumb e rsome, case by case approach based on
.
individual complaints, a proc ess which requires l ega l sophistication
and/or support which usually
dweller.
is unavailable for the ghetto
The federal government 's r e cord in this area is also
unimpr essive - neither FHA nor VA have move d aggressively to
secure maximum impact from the 1962 executive orde r banning
discrimin ation in hou s ing financed by federally guaranteed
mortg ages.
Rec ommendations
1)
National performance standards (s ee Section IV) should
stress int ~g rationas an int eg ral aspect of general developm en t
programs.
2)
Inc entiv e gr ant s ( see Se ction IV) should be u se d to
to encourage genera l d eve lopment p rograms for e ntire
�5
metropolitan areas which would tie federal support for suburban
improvements to ~rogress toward ending the racial and income
imbalances between cities and suburbs.
3)
Some form of incentive grants, particularly for
metropolitan areas, should be tied specifically to housing and
education programs which foster integration, such as scattered
site public housing, educational parks, etc.
4)
Section 204 of the Demonstration Cities and Metropolitan
Development Act should be expanded . to cover programs that affect
housing.
5)
All federal hou si ng pro g r ams should place a strong
emphasis on disp er sion, including the relocation policies in
urban renewa l.
Federal mortgage policies should be developed
to e ncourag e the construction of lower cost housing units
through relating down payments, interest rates, and the repayment
periods to the cost of the unit.
Such a policy should includ e the
use of subsidi ze d ~ortgages where appropriate.
6)
A compr e hensiv e national fair hou s in g act with the
broad es t possibl e coverage should be e nacted.
An exe cutive
ord e r should b e is s ued prohibiting se g re ga tion in all forms o f
ho~ sing assisted dir ec tly or indir ec tly by a ny federal agency.
The order should b e positiv e ly enforced, using th e techniques
d e v e lop e d in the federa l government 's efforts to e liminat e job
dis c rimin a tion in al l
form s o f f e d e r a lly financ e d employm e nt.
�6
7)
The federal governme nt should stimulate the creation
of and provide fi~ancing for metropolitan development corporations which would undertake to provide integiated low-cost
housing outside of ghettos.
The federal government would pro-
vide initial working capital and extend long term credit from
a national revolving fund.
Such corporations would accumulate
land for integrated housing, provide assistance in job location
for out-migrants, and aid suburbs in preparing effective
education programs for new resid e nts.
8)
Because job opportunities are likely to open up faster
than hou s in g opportunities, we recomm e nd a pro g ram of transportation assist a nc e with the following ch a racteristics.
a)
Re sponsiv e to ch a n g in g loc a tions o f both jobs
and work e rs.
b)
Focused on initial p e riod o f "job findin g " and
"job holding."
c)
Tr a nsfer a bl e from on e individual to anoth e r
d e p e ndin g on n ee d .
d)
Non-co mp e titiv e with the private ma rk e t .
Wh e r e such tr a v e l is r e lativ e ly concentrat e d, this d emand can
be me t th r ou g h sub s idi ze d public transport a tion .
For mo r e
disp e rs ed tr a v e l from gh e tto r e sid e nc e s to suburb a n job s,
l
I
sho r t term pub licl y - ass i s t e d a utomobil e l ea sing ar r a n gem e n t s
will be ne e ded .
�7
9)
The Administration should realize that the greatest
potential fever for change in this area is the courts.
The Task Force urges the Administration to hasten the
inevitable Supreme Court rulings which will ban de facto school
. segregation and the employment of land use controls for social,
economic and racial discrimi~ation.
Given the revolutionary
impact of these anticipated rulings, it is not too early to
begin contingency planning to assure their speedy implementation
with a minimum of public disorder.
�II.
Federal action to strengthen city
for meeting the problem of urban disparities
Problem
Implementing the strategies for urban chan$e discussed in
this report depends ultimately upon actions taken by state and
local governments.
We assert that strengthening the positions
of governors and especially mayors will be of critical ·importance
in this process.
Their ability to deliver services is seriously
limited by administrative weakness and fiscal strain.
Yet they
are the only public officials with the potential authority
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necessary to effectively manage the large-scale attack on
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urban problems which we believe is essential.
They too - and
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our population projections indicate that this is certainly true
of mayors - will be under increasing pressures to respond to
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the fre_quent, now almost steady state, urban crisis of :11;· J :~verty
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an d segregation.
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The administrative problem breaks along the follo wi ng lines :
- Fragmentation of program responsibility among semiautonomous .agencies, often -reinforced by their counterpart s at
the federal leve l, bypasses and weakens the position of mayors
and gove rn ors.
- State and l oca l officials are under di rect and close
pressures to deliver and their high political mortality rates
indicate that delivery is enormously difficult in the present
system.
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- State and local government is in a disadvantageous
competitive position for directing talented, imaginative staffs .
The political executives management problems are compounded by
the lack of personal staff; there are few institutions analagous
to the executive office at the state and local level.
- Possibi l ities for a meaningful decentralization to
federal field offices are severely limited by the realities
of political authority in the federal system and by present
congressional-bureaucratic arrangements in Washington.
- Local officials must conduct an enormous numbe r of
negotiations with truncated federal agencies to receive any aid.
At the same time the cost of urban services is on the rise ..
We can expect increasing per capita costs for social services
and we ·can expect an increasing proportion of ci t y dwe l ler s
to require them.
The cities thus are caught in a process of
cumulative deterioration whic h can be r eve r sed on l y by s hif ts
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i n t he r esi dence o f poo r people or h i ghe r i ncome by city
r es i dent s.
The pr ob l em i s par ti cu l a rly a cu t e f or l arge cities.
During fi s cal year 19 65 , f or exampl e » muni c ipal expenditures
per capita were appr oximately three times as hi gh for cities
with populations exceeding 1 million as they were for communities
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with populations under 50,00 0 .
In short, we see the following
as critical limits on cities t o pay their own bills:
- Cities are under increasing demands for social services
while their revenue capabilities are increasingly inadequate
to pay for even existing levels of serviceso
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Social service costs are rising more rapidly than
costs in the economy.
- Some cities are already in danger of becoming
almost exclusively by peop l e who can simply not a ff ord to live
elsewhere and whose need f or services is very great.
- Problems of ra i sing additional revenue within juri sdictions such as cities are i mmense, due in part to the high
mobi l ity of resources between stat es and local it i es i n the
federal systems.
Cities are forced to rely heav ily on property
and consumption taxes, both of which are highly re gressive in
nature.
- The dependence on property· taxation on hous ing f or c i ty
revenue s may be a positive de t riment t o providing mo r e standard
unit s £ or the urban poo r.
Re commendati on s
1)
Re gard les s o f pas t fai lures t he popu l a t i on pro je c tions
and trends we fore s ee clear l y ind i c ate t hat most mayo rs and
ma ny urban governors, o f n ecessity, will be increasing ly
resp on sive t o the problems o f ci ty ghetto s.
Th ey can be the
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Pr es i den t's mos t i mp ort ant al l ies i n fulfilling our nat i onal
urban go al s.
They mu s t be the f ocu s o f any mean i ng f u l
decen t rali zat i on of the f ederal s y stem .
2)
In add i t i on to the fi scal flex i b i lity and d e cent ralizati on
recommended below, we u r_ge that presen t aid programs operate
through the political executive and not semi -autonomous bureaucracies.
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3)
To build toward a capability similar to that of the
federal executive office, w~. recommend direct gr-ants to mayors
and governors for staff assistants o~ city problems.
4) _ To increase the competence of state and local govern-
ment personnel we recommend increased federal assistance for
training and continued efforts in the direction of inter-governmental
exchanges of personnel.
5)
Legislation should be promoted permittirig state and
local governments · to waiv·e . federal tax resumption of securities
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in return for a federal grant equivalent to the federal taxes
collected on the . interest from such securities.
Some estimates
indicate that this could result in an added .6 to 1 billion
dollars per year.
6) ·
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Federal assistance to cities should be significantly
increased; and the existing impediments to the effective use
of federal aid at the local level should be eliminated.
The
components of this recommendation are presented in detail' in
.Parts 111, ·1v, .-and V .- below.
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�DRAFT:LEONE:6/19/67
III.
Focusing and increasing the level of Federal
assistance to cities
The Problem
1.
Many of our present programs fail to reach
the central city poor with enough resources to make a
difference.
2.
Simple extension of present programs - leaving
effectiveness aside - to reach the central city poor would
cost in manpower, education, health, housing and legal
services ____ billion dollars a year.
3.
Unless we reach a scale of sufficient size we
will find as we have found in the past our efforts are
dis~ipated by trying to reach too many people, in too
many cities, with too many programs.
4.
Policy responsibility at the Federal level
must be focused in strengthened urban agencies.
Recommendations
The following programs are meant to focus resources
on increasing urban integration and enriching the lives
of those who remain in big city ghettos.
In each program
area, we have attempted to order our recommendations in
terms of some rough priorities and time phases with
employment having the highest overall priority .
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Our expertise in the following program areas is
limited.
We have listed only recommendations which
seem to us to be most relevant to an overall city
strategy.
Our suggestions are in no sense exhaustive.
We hope to:
Overhaul existing programs and redirect
existing resource commitments to
increase their impact on the ghetto.
Increase commitments in the most critical
program areas for implementing broad goals.
Develop new approaches to tackle those
aspects of ghetto enrichment and dispersion
not affected by existing programs.
Tie Federal assistance to disadvantaged
individuals where appriate.
1.
Employment
A.
The Task Force recommends the consolidation
of presently separated manpower programs into a single
comprehensive manpower grant.
This move would allow
development of sufficient local manpower programs under the
aegis of a single agency which would absorb the important
functions of recruitment, selection, and processing,
training, placem ent and follo w-up of the poor .
This st e p
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would include consoli dati on of those programs administered
by the U. S. Department of Labor including institutional
training, on-the-job training, neighborhood youth corps,
concentrated employment program in the employment service
with the Vocational Rehabilitation and OEO employment
operations.
B.
In the absence of si gnificant
consolidation programs, the Task Force recommends an
expansion and refocusing of the on-the-job training
program to provide higher subsidies to private industry
for training of the poor.
Reimbursement for tr aining
costs should be doubled and perhaps quadrupl ed and the
26 weeks presently allowed should be expanded to a full
year.
OJT should b e provide d with a greater staff for
job developmen t and for counselin g and follow-up after
placement in a job training position.
C.
In order to compensate for the declin e
of manufacturing and commercia l jobs in the city, the
Task Force r e commends an expansion in public employment
throu gh the n ew car eers idea as emb odi e d in the Scheuer
Ame ndment to the Economic Opportunity Act.
New careers
provides entry level employment for the poor with
meaningful upgrading in work and profes~ional training.
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D.
The Task Force recommends an increased
number of demonstration projects - of all types to test the important relationship between deficient
transportation to work sites and the willingness and
ability of city residents to accept training and employment.
E.
The Task Force recommends a joint effort
by HUD and the Department of Labor to negotiate a nation a l
mod e l ag r e ement for employme n t with th e build i n g tr a de
unions, which would permit lar ge -scale slum rebuilding
e xperiments to make gre a ter use of slum resid ents.
We
r e co gn ize th a t th e i mpl ement ati on of this r e comme nda tion
would not solve any signific ant proportion of the
employment problem but it would h ave useful symbolic
v a lu e i n the ghe tto s of ce ntr a l c ities.
The De p a rtm ent
of Commerce should be involv e d to reach similar agreemen t s
wi th employe r s in the c onst r uction industry.
F.
As a l on g-run possib i l i t y, we su ggest a
p r o gram whic h wou ld operate much like th e GI Bi ll of Rights
wh i ch would pl a ce e ntitl ements i n t h e ha nds of th e p oor t o
maximi xe persona l ch o i ce in selecting edu cational, t rainin g
and employment assistance.
Th e funds could be u sed by the
· ind i v i du a l to gain c ert ification in regul a r educat ion a l
institutions o r f or training on the j ob with the employer
receiving reimbu rsement f or hi s trai ning c os ts.
The great
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advant~ge of this approach is in avoidi~g the seemi~gly
endless tangle of referrals, delays, and insensitivity
encountered in the present, fragmented system.
2.
Education
A.
Any program of Federal aid for elementary
and secondary school construction should offer in_c entives
for facilities designed to increase the integration of
students.
"Bonus" funds could be available for
educational parks within cities, suburban exchange schools
and for consolidated school districts.
Funds should also
be included for the modernization and replacement of older
school plants in central cities.
B.
We recommend a program of educational
subsidies for low-income children which would be
administered as scholarships for use at any approved
elementary and secondary educational institution.
"Bonus" funds could be available for schools which are
integrated or are experimental.
C.
3.
Sizer recommendations (see paper)
Special recommendations for urban veterans
A.
We give the strongest endorsement to
Department of Defense Manpower programs, such as
. "Proj e ct 100,000" and "Project Transition" .
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B.
We recommend a stepped-up outreach
activities in the Veterans Administration to trace
those with the greatest need for assistance at the
point of separation and especially after separation.
C.
We urge FHA and VA loans to servicemen
and veterans to finance proposed or existing individually
owned on e -family units in pr~ects containing five or
more units.
D.
We recommend that VA be given a special
mandate and the capacity to assist ghetto v e terans in
obtainin g such urban skills as planning, social service
work and community developm e nts.
4.
Incom e mainten a nce and we lf a re
A.
Any well conceived strategy for the city
requires substantial increases in consumer demand.
City dwe llers ne e d a sustain e d and substantial upward
movement in payme nt lev e ls for
(1)
unemployment compensation
(2)
we lf a re p ayme nts
(3)
minimum wa ge
B.
The present welf a re syst e m must be
alt ere d t o make i t a mo re e ffe ctive instrume nt in de ali n g
with gh ett o depe nd e nc e .
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(1)
Altering AFDC man in the house
requirements to permit
(2)
Altering outside income requirements
to eliminate the in-effect 100%
income tax rate and thus encourage
C.
We should move towards having a l~rger
proportion and perhaps all welfare payments at the
Federal level.
Continued reliance on localities and
states for a share places an added strain on their
frequently regressive tax systems and inhibts the
development of more r e asonable national standards for
welfare.
S.
Public Facilities
A.
We urge greater use of the location of
public facilities - both Federal and Fede rally support e d as a lev e r in s e curin g a ctu a l int eg ration, op e n housin g
and employment opportunities.
Those facilities which can
be located in cities, especially community colleges and
hospitals, should b e consid e r e d a part of overall
dev e lopm e nt and city enrichme nt pl a ns .
Public employ me nt
for low-income groups should be related to any n e w
facilit y - includin g those in th e suburbs .
This n ew f ocus
o f re spo ns ibili ty s h oul d b e come a ma jo r conc ern d f t he
Se c re t aries o f HEW an d HUD .
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B.
The Department of Housing and Urban
Development should be given a primary role in
coordinating all Federal urban capital investment as
part of national integration and enrichment strategies:
6.
Housing
A.
To achieve integration there must be
continued emphasis on compliance with desegregation
guidelines in housing financed through the Federal
mortgage programs.
This is especially important in
suburban developments which will account for 90% of the
new housing ov e r the next 25 years.
The flow of resources into financing
housing is affected by interest rates, alternative
investment opportunities, and oth e r forces, some of which
are greatly influenced by Feder a l policy.
B.
Lower interest rates to stimulate a ~inimum
annu a l construction rate in housin g should be a national
objective.
Th e eff e cts of low interest rates on the
supply of low- and moderate-housing "swamps" the effects
of Federal "housing progr ams" as such .
C.
Investme nt inc e ntiv es such as t a x credits
and d e pr e ci a tion sch e dul es should b e a p pli e d t o hou s in g
in th e s ame way th a t th e y a r e a pp li e d to oth er c a pit a l
goo d s.
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Every mechanism for maintaining a constant flow of
investment into housing should be explored by the
Administration.
These might include the issuance of
longer term certificates at higher interest rates to
attract the investing power of pension funds and
insurance companies.
Certificates-should be issued
by the Federal National Mortgage Association.
D~
The Task Force recommends expanded use of
devices such as leased,scattered site public housing
rehabilitated through use of the "turnkey" approach with
purchase options for the tenants.
E.
Homeownership incentives for central city
ghetto resid ents simil ar to the Veterans' Administration's
no-down payment programs should be offer ed .
F.
The Task-Force recommends that the multi-
family mort gage operations be separated ;·from the present
Federal Housing Administration which would then b e
charged with insuring only single-family mortgages.
In the absence of such surgery, we believ e th a t the age
and inflexibility of most FHA officials renders any
alternative recommendation unworkable.
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7.
Special Recommenda tions on the Community Action Program_
a)
The Task Forc e believes the community action idea
is a major innovation in Federal programming and reflects
the emphasis on demonstration and experimentation which
is critical for increasing our problem-solving capacity.
The Community Action Program should be retained within
an independent OEO with its charter for flexible and
innovative programs.
b)
A first step toward employing performance criteria
in distributing scarce CAP funds should be taken.
These crit e ria should include the CAP's innovative
capacity, its ability to coordin a te other relevant agencies
and to op e rate its own programs.
c)
Demonstration funds should be incre a sed accomp anied
by ti ghter research controls applied to projects.
d)
Guid e lines to insur e CAP participation in Mod e l Cities
plannin g and execution should be promulgat e d.
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Th e dev e lopment of commun i ty action agencies as parts
of th e local politic a l and gove rnm ent a l s y st em should be
encour age d .
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IV.
Reforming the administration of federal urban programs to
provide simplification, flexibility and decentralization
The Problem
The American federal system is being slowly strangled by
the complexity of contemporary intergovernmental relations.
Cities and states are fighting a losing battle to extract ·
maximum advantage from a bewildering variety of federal assistance
programs.
Administrative shortcomings seriously compromise the
prospects of many of the imaginative federal programs developed
in recent years.
The Task Force has grave doubts about the
capacity of this over-burd ened system to manage the new efforts
needed to move th e ghetto resident into the mainstream of
American society.
By accident rath er than design, th e federal governmen t has
created an extremely categorical, fragm ented, and complic ate d
approach to urb an programming.
Each program area t ends to
develop its own set of sp ec ific program goals and controls, a
clos e r e lationship wi th a specialized clientei"e, and a narro w
perspectiv e on th e problems of cities and suburbs.
Because the
feder a l government seeks to achieve general policy objectiv es
through highly detai led pro gram controls, most federal programs
are characterized by an ov ercen tr aliza tion of detai l , administrative rigidity, long delays in processing applications, a multiplication of required cons ents , a failure to inno vate , and a
lack of responsiv e ness to speciali zed loc a l ne ed s.
Cities
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confront delay and confusion in the funding of their programs;
they witness an inability of federal agencies to work with
one another in making sense of federal programs in urban areas.
The burdens of an already overloaded system of intergoverrimental relations have been multiplied by the rapid expansion of
federal domestic prqgrams during the past seven years.
Most of
the new programs are categorical and involve detailed federal
program controls.
In an effort to advance laudable national
policy goals, such as metropolitan coordination and highway
safety, additional detailed requirements have been imposed on
existing programs.
The net effect has been to complicate further
the bureaucratic maze that stands between federal resources and
.urban problems.
The Task Force is especially concerned about the failure
of the federal government to build sufficient flexibility and
opportunities for state and local discretion and innovation into
the federal aid system.
Many of the problems of large city
ghettos are quantitativ e ly and qualitatively different from
those of the poorer neighborhoods of smaller cities .
Solutions
to many of our most vexing urban problems are neither obvious
nor universally applicable.
Yet relatively few fed e ral progr ams
permit the d eve lopmen t of locally-determined str ateg ies for
cities and metropolitan areas.
In its str ess on local innovation and flexibility, the
Model Citi es Program represents a welcome departure from the
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rigid programmatic approach.
By emphasizing systematic planning
and coordination of federal categorical grant programs, Model
Cities seeks to reduce overlap and dupl{cation of effort.
But
constituent-agency relations, formula grants, inflexible requirements, and specialized administrative practices tax the
ability of any city to tie these many disparate strands into
an effective program.
In addition, Model Cities program standards
are added to those required by the component programs without
any compensating simplication of the process whereby a~plications
for assistance are approved.
Innovation, flexibility, and
coordination are easily stymied by a process whose practical
effect is to pyr am id requirements, multiply consents, and
increase the time lag in bringing r e sources to bear against
problems.
The Task Force is impressed with neither the record nor the
potential of existing instruments for securing interagency
coordination of grant programs, such as Bureau of the Budget
intervention to resolve interagency conflict, interagency
committ ee s, the me tropolitan expediter, and HUD's convenor
order.
Th e Administration's experience with the community
action program and the neighborhood centers unhappily indic ates
that substantial coordination cannot b e achi eved at th e federal
level withou t substantial ch anges in the grant-in-aid me chanism .
The massive effort need ed to overcome the problems pos ed
by the ghetto will be financed l argely by some form of federal
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grant-in~aid.
To the degree that such grants are programmatic,
the Task Force is convinced that it is absolutely essential to
streamline and simplify the distributivi mechanisms.
Instead
of extending and expanding categorical aids, the Administration
should stress consolidation, decentralization, and flexibility.
In the opinion of the Task Force, however, fragmentation,
administrative complexity and rigidity, overcentralization of
de tail, inadequate coordination, and lack of innovation are
endemic to the programmatic approach.
Even the most imaginative
reforms are likely to have only a marginal impact if grant
programs continue to multiply at th e ir present rate.
Of course,
this growth rate would be accelerated if all the Task Force's
recommenda tions were transl ated into ind ividual grant programs.
An increased fed er al commitment to urban problems and a
national effort focused on ghetto def iciencies requires a
substanti al reorientation o f roles and responsibilities in th e
federal system.
The Admini s tration b egan this task with th e
development of th e Poverty and Mode l Citi es progr ams .
The Task
Force believes th e time has come to expand the application of
these conc ep ts through th e developme nt of a highly fl ex ibl e ,
loc~lly - based s yst em of grants-in - aid which substitutes general
purpos e assistance for progr amma tic gr ant s and n a tiona l p er formance standards for detailed program c ont ro l s.
It should a l s o b e not e d that the r ec ommend a tions h av e b een
design e d to p e rmit th e partial applic a tion of th e s e concepts.
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Thus, the implementation of these proposals may be staged over
time, with the most promising program areas selected for initial
treatment.
It also will be possible to retain _federal program
standards in those areas where such controls are deemed in the
national interest.
Recommendations
1)
Application, processing, and revi ew procedures should
be streamlined in all non-formula grant-in-aid programs.
The
goals of internal program reform should be: (a) to simplify
application procedures through the development of standardized
methods; (b) to r e duce sh~rply the time between application and
approval or rejection of a grant request; (c) to reduce multiple
cons ents; (d) to check the trend toward pyramiding requireme nts;
and ( e ) to employ standardized revi ew and audit procedures .
Responsibility for the implementation of this recommendation
should be lodg e d in th e Bureau of th e Budget.
2)
Gr ea ter u se s hould be made o f earmarking of grants to
facilitate the fundin g of programs lik e Mode l Cities and
community action which cut across pro gram and agency lines .
This dev ice should be u sed to enh ance the focu sing of fed e ral
res ou rces on ghetto problems.
3)
Whenever possible, new grant programs should b e merg e d
with exist ing programs .
Con so lidation of r e lat ed grant pro grams,
along the lin es of the Partnership in Health Act of 1966 , s hould
be giv en high priority.
Gr ant consolida tion reduc es the numb er
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of separate negotiations which any jurisdiction would have to
carry on in order to design relatively comprehensive local programs.
4)
Provision should be made for consolidated
applications
for two or more related grants administered within a single
department.
Such intra-agency grants would permit a state or
local agency to deal with a single representative of the
appropriate department wh en applyin g for r e lated gr ants.
Impl ement a t io n o f this r e comme nd a t ion r e qui res the e s tabli s hmen t
of an intra-agency grant office within each department, prefe r a bly
in the off ic e of the s e cret ary.
The intra-agency gr ant off i ce
woul d r e c eiv e and p roc ess the a ppli cati on for an i n tr a-age n cy
grant, coordinate th e revi ew of the application with th e
appropri a t e ag enci e s within th e d e p a rtmen t to insu re th a t
pro gram s t and a r ds we r e be ing me t, and a ct as the f ina l gr a n t in g
authority, subj e ct to appropri a te r ev i ew at the d ep a rtm e nt a l
leve l .
5)
Pr ov i sions s h ould b e made f o r c on so li dated app l ications
for two or mor e related grants administered by agencies in two
or mo re de p a rtments.
Such in ter- a ge n c y grants woul d p ermi t a
state or local agency ~o deal wit h a sing l e federal agency when t he
federal grants needed to finance a compreh ensive project are
adminis t ered by t wo or more depa rtm en ts.
Imp l emen t ation o f
this recommendation requires the d es ignation o f an agency to
rec eive application s for inter-ag ency grants, to coor din ate th e
review of the application with the appropriate agencies to insure
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that program standards are being met, and to act as the final
granting authority, subject to appeal by the appropriate
departmental heads.
The Task Force believes that the inter-
agency grant coordinating function should be assigned to the
same agency which is designated as the principal federal urban
agency, as recommended in Part III above.
Legislation to
implement this recommendation would not authorize the waiver
of statutory provisions such as eligibility for -grants, matching
ratios, or program duration.
6)
Performance standards should be substituted for detailed
program standards wherever feasible.
Standards should be simple,
general, quantifiable where possible, and applicable to a wide
variety of contexts.
Performance standards should relate to
general societal goals rather than to specific program objectives.
Thus, a housing performance standard might be the proportion of
substandard dwelling units, not the number of public housing
units.
National performance standards should focus on the
urban goals of integration and enrichment.
7)
The substitution of performance standards for program
controls should be accompanied by the pooling of funds in existing
grant programs.
An essential first step in pooling is the
establishment of functional pooling arrangements which permit
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the unrestricted use of funds in a general functional area, such
as housing, manpower training, health, or transportation.
In
housing, for example,public housing, urban renewal, and rent
supplement funds would be pooled, to be employed by the
appropriate local or state agency to implement a comprehensive
housing program.
All programmatic restrictions would be removed.
from the use of pooled funds; thus, funds derived from the
public housing program might be used to finance .rent supplements,
rehabilitation, code enforcement, or some other locally devised
strategy designed to overcome housing deficiencies.
8)
Where federal funds are functionally pooled, the basic
requirement for eligibility should be a comprehensive program 1n
the functional area which relates local deficiencies and needs to
the ~ppropriate national performance standards.
Comprehensive
housing, manpower, health, or transportation programs should be
developed by the appropriate local or state agency.
Comprehensive
programs would specify local deficiencies in terms of national
standards, set forth program goals to meet the national standards,
and indicate in a general way the projects to be undertaken to
reach the program goals during the life of the comprehensive
program.
When all funds functionally pooled are from programs
within a single agency or departm ent, th a t agency or departm e nt
should approve the comprehensiv e program and monitor its impl e mentation .
When functional l y pooled funds are drawn from two
or more departm ents, the principal federal urban agency recommended
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in Part III should approve the comprehensive program and monitor
its implementation.
9)
Provision should also be made for the pooling of federal
funds across functional lines.
Unde r this type of arrangement, some
or all of the federal aid flowing into a neighborhood, municipality,
county, metropolitan area, or state would be pooled, with all
programmati c restrictions removed from the use of the pool ed
funds.
Eligibility for general pooling should be based on the
preparation by the appropriate local or state unit of a general
development program based on national performance standards.
General development programs would be similar to the comprehensive functional programs discussed in the previous recommenda tion, except that their scope would be substantially bro ader .
General dev e lopment programs would b e approved by the principal
federal urban agency recommended in Part III, which would also
monitor the implementation of the general development program.
10)
To facilitate the preparation of compr e hensive functional
programs and general development pro grams, federal technical
assistance and pl a nning aid should be expanded.
In the case o f
compr ehens iv e function a l progr ams involving two or more a ge nci es ,
and in all instances of general development program prep a ration,
technic a l assist an c e and planning aid should be funn e l e d throu gh
th e p r incip a l fe de r a l urb an age ncy a s r e commend e d in Pa rt III.
As a first step toward implemen tin g t he previou s recomme nd a tions,
t he federa l governmen t s houl d f ina nce the prepar a t io n of a
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number of comprehensive functional programs and general development programs by a variety of local and state units.
11)
The federal government should initiate a program of
. general purpose assistance to local and state governments.
We
recommend that two types of general purpose grants be developed
deficiency grants and incentive grants.
a)
Deficiency grants are general purpose formula
grants designed to provide supplemental federal assistance
for local units, the ma gnitud e of which would be related
to need and capability.
An equalization formula to
accomplish this purpose would be based on population, per
capita incom e , tax bas e , tax effort, and perhaps other
measur e s of social, economic, and infr as tructure d ef iciencies.
Defici en cy grants could be used by the r e cipi e nt local or
state unit for any public purpose consistent with a general
developm ent program.
Eligibility for deficiency grants
would be det e rmin e d by the princip a l f ede ral agency recommended
in Part III through its approval of a general development
progr am.
Given th e magnitud e of th e gh e tto probl em , th e
Task Force r e comme nds an initial outlay of$
for defici ency grants, which would provide$
billion
per gh et to
dwell er.
b)
Inc en tiv e grants are gen e ral purpose grants
distributed by the principal federal agency recommended in
Part III.
Incenti ve grants could be used to suppl eme nt pool ed
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funds ·or interagency grants.
The availability of general
purpose agency grants should enhance the ability of the
principal federal agency to promote inter-agency grants,
pooling arrangements, and comprehensive functional and
. general development programs.
A significant proportion
of incentive grants should be used to stimulate the prepara- ·
tion and implementation of general development programs which
give high priority to ghetto problems, especially integration.
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V.
Increasing knowledge of solutions to urban problems
The Problem
The Task Force believes that if this society were
ready to commit the resources required for its cities,
new technologies and knowledge could make our efforts
more effective and relevant than is presently possible.
We emphasize the advantages of the Federal government
as a funder, controller and evaluater of demonstrations
and experiments - an advantage which is readily apparent
in the aerospace industry.
This advantage is presently
being dissipated by fragmentation of problems by agency
mission, lack of long-term financing of experimentation
and basence of sensitive feedback mechanisms to influence
policy-making.
In addition, the efficiency of our
efforts to solve urban problems may be limited by . the
small scale of our programs and even demonstrations.
Recommendations
1.
The flexibility and emphasis on innovation
characteristic of the Model Cities Program should be
exploited by conc e ntrating resources - as far as possible on 4 or 5 cities and/or metropolitan areas capable of
implementing we ll-structured and cont r olled experiments.
To achieve this wo uld require at least the following:
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-- Assignment of responsibility for the design
and evaluation of the experiments to the new Assistant
Secretary for Research and Development in DHUD.
-- Informal allocation of resources from a ge ncies
other than HUD, (for example, project demonstration
monies in HEW and Labor) for use in the selected cities.
-- An aggressive Federal role in providing
technical assistance to thes e. "key" cities'.
2.
The creation and fundin g of an institute for
basic urb an r e search, along the lines of RAND or IDA in
th e de fense area.
The institute should be Federally
funded, independent of day-to-day departmental control
and able to und e rt a ke long-term research projects.
· Initially, the institute would not undertake operation
or fundin g of action projects, but would concentrate on
basic rese a rch into urban economics, data collection and
analysis, etc.
3.
A stren gthen e d and be t t e r-financed demonstration
and exp e ri me nta t ion rol e for DHUD and its Assist a nt
Secr e tary for Re se a rch and Deve lopment .
This should
includ e th e abilit y to fin anc e long-t e rm proj e cts
ind ep enden t of f isc a l year r es trictio n s and deve lo pmen t
an d a c ti on p ro j ec t s in fi e lds other than h ousi ng.
A h i gh
premium should be p l aced on j oint funding with o ther
agencies for projects cutting across several service
sectors.
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4.
The evolution of a developmental orgariization
which can undertake large-scale investments in new
systems, such as new housing ideas.
This institution
might be developed by the Assistant Secretary for Research
and Development in DHUD.
It should have the funds,
flexibility and authority to underwrite construction of
new types of schools or hospitals or houses on a scale
large enough to make a difference.
This agency also
could expend the developmental work done by OEO in basic
manpower and health iystems, or combine them with the
physical elements of a sector.
The first target of
large-scale development should be constructing more
efficient and flexible low-and moderate-income housing.
5.
The capacity of local and state governments to
undertake research and development should be increased
with the aid of positive Fed era l action.
Subsidies to
regional or urban universities are one means of achieving
this; financing of research staffs for governors and
mayors is another.
Federal programs, such as Model Cities
and Community Action, which stimulate innovative and
experimental action projects should be expanded as the
best hope ' for building local development capacity.
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6.
We believe the natural advantage enjoyed by
the Federal government for financing and evaluating
research and development should be strengthened in
all departments.
Within department, R&D otitputs
should feedback to the Secretary to insure that R&D
projects affect on-going programs and policies and open
new directions.
Responsibility for monitoring government ~
wide urban R&D activity should be centralized either in
the Executive Office or in HUD.
Without centralizat i on,
th e r e sults of r e sear ch in one a ge ncy are not like ly to
become inputs in the policy-making of another.
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Box 22, Folder 18, Document 32
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966