2
20
82
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c8e4ad8a65f79a0c18444876f70be19d
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A written representation of a document.
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THE NEW YORK TIMES, ·.M ONDAY, N OVE':\1:BER 21, 1966.
.POPULAT.ION ISSUEIf _
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··· PERTURBS H
TIRTZ
[
J./, -: . •'·· ' · ,._ .~~,, ·
H
1
..,
Dangers F oreseen
i
·r,'i "Just as science has made
training in ,two \\.;Y~ by_ pro~·id-·
,ri-;/"
~ war t oo dangerous to be left _to ing an across-the-board mcrease
I the aenerals, Mr. W irtz said,
in medical t raining and by !)roj ;- _ .-_ .-··
·
· I' "scie; ce, when it unloc_ks t~e
viding a S30-million fund to
·<:- ;:Y;r ,.
·f
arcane of thought an~ llfe Will es tablish 60 academic chairs to
tf .>.•
·. • ;:_ · • ,-:,.
· I either h ave made science t oo s tabilize the college's long-range
He Discerns Inadequacies in i j f ,...,, . ·, ·.:.~
. .
dangerous t o be left t o th e sci- educational program.
~ '\ !1~~;,;_s,' / : ,~,.
_,entists or will have made gov- ' Ee indicat ed that medical
Birth Control Discussio1is i . 'fl'::.;J -~ _s;.'t_·,..-·:·
F.'t!i ernment t oo danger~us t o be student enrollment would in{_-,_ , }it,-.:,; ;{ ;,;~~ {- ·
.t;;' left t o the governed.'
crease from 96 t o 120 a class,
that enrollment for doc torates
is
E~~s!;~~h~~ll~:lv;~~it~~ would double from 45 to 90 and
1
t hat there would be a substanW il- ; · ·\ .
.,%
,f>_}:f--'.:_'_,_, began yes terday a S120-m1l!Jon
s e! ;et:~;
Jard Wirtz observed critically
'Z.h'f': _:
pt
/d, development program over a ti2! inc rease in the number of
. ' \,\i,,~j:;,,,.
. .. • ·
:::-",-i.fa;
1 10-year period to _strengthen_ :nte:n residents and post-docyest erday' tha t the controversia l
"'(.lf_,:. and ex tend the me~1cal school toral fellcws trained.
question . of birth control had t
...' .·, \_·, .. • .
-~'0 progra ms of education a nd reTo pr'.lvide fac ilities for its
not been dis cussed openly- :. . . ·. .qf. i..,._Y::
~ search a nd the development of cxp~.nded enrollment, t he E in"unless -to be der ided"-a t the /r · _;;:·,,,.- , / '
· :,.J ::xtensive facilities.
Medical School is planning
r_ecentlyth heldh eletchtion catm- f:_
.·
· ·"· J ack D. Weiler, chairman of ste::-i
./
E duca~:anal Center .
paigns
roug out
e coun ry. f
-·-..1.,,
the Medical College's Board of :nr15-story
He":~h Sciences on its
N oting that some population ;.
,/
,Overseers, a nnounced that the · -campu.;;.
experts· predict there will be f ,
campaign h ad · started _ wi~h
T he build ing would proYide
three billion people 01· m ore by t/_ .·
preliminary pledges of Sl J-nul- classrooms, lecture nails and
t he year 2,000, :Mr. Wirtz added ~ .
lion.
laboratories, as \\'ell a s other
that "t ~ere is ? . ;;:owing aware- i
One of t he highlight s of the facilities, including a two -story
ness tha t centuries after 1\1:al- I
convocation was t he presenta computer center and headquarthus's warning- that t her e may ,
tion of honorary degrees to four ' t ers for a greatly expanded pronot be fo od to feed so many."
l..........
prominent Americans for vari- gram of preventive medicine
His r eference to :Malthus reThe New York T i mes
ous achievements in their
and communit y health.
1
ferred t o Thomas R. Malthu3, VIEWS
BIRTH RISE: fields.
· Three large middle - income
18th century economist who Secreta ry of Dabor W. WitCited were 1\fr. Wirtz, who
apartment houses ,::'.I'. be built
was a uthor of the theory that la rd W irtz said birth con- was awarded the degree of
on' the campus site to provide_
population t ends to increase
docto r of laws ; Cha rles H. Revresidential quarters fo r nurses,
fa ster than the f::l:Jd supply, and trol issue s h ould h a ve been son. chairman of the boa rd of
h ouse staff, married s tudc:-its,
tha t war , disease and famine a re d iscussed m ore openly iii Revlon, I nc., doctor of humane
pos t-doct oral fellows and juniur I
!'!~ce~=~ry t k ee:' t:w popula- . t i!3 .::.Cl_ccfio-;: · · ca m 1i::i.i~l]s.;_: letters ; Dr. Albert B. Sabin,
faculty.
·
tion in balanc with the food
who developed oral polio vacsupply. P opula tion H althus said,,
cine, doct or of science, and Dr.
mus t be checked by moral reSidney Farber of Ha rvard
straint.Medical School, doctor of sciSpeaking at a s pecia l convoence.
cation at the Albert Eins tein
Dr. Samuel Belki n, president
Colle"'e of :Medicine in th e upof , Yeshiva University. who
0
per Bronx, Secreta ry Wi:·tz
awarded the degrees, observed
used t he birth control qu estion
t hat the r ecipients represented
as an example of the failure of,·
the "creative pa rtnership of
in his words, "the majority" to
government, science and philanface u p t o t he k:iowledge·
thropy in the growth and development of American medical
science ~- consta ntly dc·,elop·
·
education and re earch."
ing.
. ·
· ·
I
'l'he new program. j\fr. Weiler
"There is, at least," h e said,
sa id, would streng then medical
"a rouah equiv:i lent between
both th; na ture and the infinite
importa nce of t wo pur.,uits:
that by the life scienti~( of th e
method· of creating life, a nd
that by society of how t o con- 1
. o! bi rth.. .
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A.
_THE. ‘NEW YORK TIMES, “MONDAY, NOVEMBER 21, 196.
‘POPULATION ISSUE
PERTURDS WIRTZ)
He Discerns Inadequacies in
Birth Control Discussions
By IRVING SPIEGEL
Secretary of Labor W, Wil-
lard Wirtz observed critically
yesterday that the controversial
question of birth control had
not been discussed openly—
“unless to be derided"—at the
recently held election cam-
paigns throughout the country.
Noting that some population
experts predict there will be
three billion people or more by
the year 2,000, Mr, Wirtz added
that “there is 2. growing aware-
ness that centuries after Mal-
thus's warning—that there may
not be food to feed so many.”
His reference to Malthus re-
ferred to Thomas R. Malthus,
18th century economist who
was author of the theory that
population tends to increase
faster than the f20d supply, and
that war, discase and famine are
necezsary to keen the nopula-
ths
tion in balanc> with the food
supply. Population Malthus said,
must be checked by moral re-
straints i
Speaking at a special convo-
cation at the Albert Einstein
College of Medicine in the up-
per ‘Bronx, Secr etary Wirtz
used the birth contro] question
as an example of the failure of,
in his words, “the majority” to
face up to the knowledge
science 4s constantly develop-
ing.
“a rough equivolent between
both the nature and the infinite
importance of two pursuits:
that by the life scientis' of the
method of creating life, and
‘that by society of how to con-
ol birth.” }
CLO aera
Se manna pe
Oe RE AN UAE it
es 4
5 ni
The New York Times
VIEWS BIRTH RISE:
Secretary of Imbor W. Wil-
lard Wirtz said birth con-
trol issue should have been
discussed more openly in
lection
“There is, at least,” he said,
2 campaigns, -
Dangers Foreseen
war too dangerous to be left to
the generals, Mr. Wirtz said,
“science, when it unlocks the
arcane of thought and life will
either have made science too}
dangerous to be left to the sci-
entists or will have made gov-
ernment too dangerous to be
left to the governed.”
The Einstein College, which
is part of Yeshiva University,
began yesterday a $120-million
development program over 4
10-year period to strengthen!
and extend the medical school
programs of education and re-
search and the development of
oxtensive facilities.
Jack D, Weiler, chairman of
the Medical College's Board of
‘Overseers, announced that the
campaign had started with
preliminary pledges of $15-mil-
lion,
One of the highlights of the
convocation was the presenta-
tion of honorary degrees to four
prominent Americans for vari-
ous achievements in their
fields.
Cited were Mr, Wirtz, who
was awarded the degree of
doctor of laws; Charles H, Rev-
son, chairman of the board of
'|Revlon, Inc., doctor of humane
letters; Dr. Albert B, Sabin,
who developed oral polio vac-
cine, doctor of science, and Dr.
Sidney Farber of Harvard
Medical School, doctor of sci-
ence.
Dr, Samitel Belkin, president
of . Yeshiva University, who
awarded the degrees, observed
that the recipients represented
the “creative partnership of
government, science and philan-
thropy in the growth and de-
velopment of American medical
education and research.”
The new program, Mr. Weiler
said, would strengthen medical
“Just as science has made
+
training in two ways by provid-
ing an across-the-board increase
in medical training and by pro-
viding a $30-million fund to
establish 60 academic chairs to
stabilize the college's long-range
educational program.
Ee indicated that medical
student enrollment would in-
crease from 96 to 120 a class,
that enrollment for doctorates
would double from 45 to 90 and)
that there would be a substan-
tial increase in the number of
intern residents and post-doc-
toral fellcws trained.
To provide facilities for its
expanded enrollment, the Ein-
stc!n Medical School is planning
ja 15-story Educational Center,
jor Health Sciences on
‘campus.
its
The building would provide
classrooms, lecture halls and
laboratories, as well as other
facilities, including a two-story
computer center and headquar-
‘ters for a greatly expanded pro-
gram of preventive medicine
and community health.
' Three large middle-income
apartment houses vill be built
on the campus site to provide.
residential quarters for nurses,
house staff, married students,
post-doctoral fellows and junivr,
faculty.
'
Le
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Box 22, Folder 17, Document 20
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/859eb47a183198b3fbbf6bc8b0aa2651.pdf
e4392eff2956fcb7f91224930402c91b
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A written representation of a document.
r 15, 1 66
Force
Tot
At th , direction of P ul Yl
of the
pr
y
r, I
tt chi
• Ch pin on lo - r n
i
, co y
es for
co
If y
_ aibl
roul
to t l
c.re of dt trl utt
of lee
it to t' _ oth .~ merm>e:r••
�
Text
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November 15, 1966
MEMORANDUM
Tor Members of Task Force
Frome ArDee Ames
At the direction of Paul Ylvisaker, I am attaching a copy
of the memo prepared by Mr. Chapin on long-range issues for
consideration by the task force.
If you would send your memo to this office as soon as
possible we will take care of distributing it to the other members.
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Title
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Box 22, Folder 17, Document 21
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/89b4a729c3ed6f666c719cf215fa9fa5.pdf
488d715cbf8134eab71b4fea9871c3ed
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A written representation of a document.
STATEMENT ON LANDLORD-TENANT RELATIONS
For a tenant who is poor and lives in a slum, the balance of
power in landlord-tenant relations is an unequal one.
The slum dweller's ability to compete in the market place by
moving elsewhere is · sharply limited.
His ability to -seek legal redress
is hampered both by his level of poverty and the lack of an adequate ·
framework of legal protection.
His ability to obtain protection from
government is limited by inadequate code enforcement programs and a
lack of effective governmental sanctions in dealing with major code
violations.
Reformation of landlord-tenant law is a state and local
government responsibility, but of major importance to the national
welfare.
The federal government already has substantial authority
to help protect the rights of tenants through better code enforcement.
The steps ta.ken by the federal government, while indirect, can be of
decisive importance.
I
I
I
Recommendations:
1.
The Task Force therefore recommends:
That a National Institute of Urban Housing Law be es-
tablished and adequately funded on a long-term basis.
The Institute
should be em.powered to prepare model statutes, develop briefs, and
serve as a clearinghouse of housing law information.
~--
... __
/
/
�2.
That the administration of HUD' s "Workable Program" which
now statutorily calls for an effective program of code enforcement, be
strengthened (a) by giving the matter highest possible priority in the ·
Department, (b) by clarifying regulations and developing specific
criteria on what constitutes an effective program, and (c) ~by requiring ·
uniform statistical reporting to determine comparable rates of municipal
performance.
3.
That HUD's program of aid for concentrated code enforce-
ment (Sec. 117) be revised to allow the use of such funds in hard ·core
slum areas to cope with most urgent code violations, or new legislation
should be sought to provide a new aid program for urgent repairs and intensified municipal services in such slum areas.
4. That HEW should be directed, either by legislation or
administrative action, to require as a condition of continued welfare
payments that state and local governments establish a program that:
(a) provides a system for the inspection and certification of major code
violations and the opportunity for welfare recipients to elect to with-
I
I
hold their rent where justified, (b) allows rent to be placed in escrow
for the repair of such violations, and (c) requir~s enactment of
appropriate legislation prohibiting summary eviction of such welfare
tenants.
5.
That all federal departments concerned with property acqui-
sition prohibit peyroents for values rep~esented by the amount of code
violations.
6.
I
--
_/
That federal departments dealing with the audit and veri-
fication of real estate and mortgage loan assets require certification,
for each property concerned, that no official complaints of code violations
I
are presently pending.
�
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.
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STATEMENT ON LANDLORD-TENANT RELATIONS
For a tenant who is poor and lives in a slum, the balance of
power in landlord-tenant relations is an unequal one.
The slum dweller's ability to compete in the market place by
moving elsewhere is sharply limited. His ability to seek legal redress
is hampered both by his level of poverty and the lack of an adequate ©
framework of legal protection. His ability to obtain protection from
government is limited by inadequate code enforcement programs and a
lack of effective governmental sanctions in dealing with major code
violations.
Reformation of landlord-tenant law is a state and local
government responsibility, but of sade dumewian se to the national
welfare. The federal government already has substantial authority
to help protect the rights of tenants through better code enforcement.
The steps taken by the federal government, while indirect, can be of
decisive importance.
Recommendations: The Task Force therefore recommends:
1. That a National Institute of Urban Housing Law be es-
tablished and adequately funded on a long-term basis. The Institute
should be empowered to prepare model statutes, develop briefs, and
serve as a clearinghouse of housing law information.
2. That the administration of HUD's "Workable Program" which
now statutorily calls for an effective program of code enforcement, be
strengthened (a) by giving the matter highest possible priority in the
Department, (b) by clarifying regulations and developing specific
criteria on what constitutes an effective program, and (c) by requiring
uniform statistical reporting to determine comparable rates of municipal
performance.
3. That HUD's program of aid for concentrated code enforce-
ment (Sec. 117) be revised to allow the use of such funds in hard ‘core
slum areas to cope with most urgent code violations, or new legislation
should be sought to provide a new aid program for urgent repairs and in-
tensified municipal services in such slum areas.
4. That HEW should be directed, either by legislation or
administrative action, to require as a condition of continued welfare
payments that state and local governments establish a program that:
(a) provides a system for the inspection and certification of major code
violations and the opportunity for welfare recipients to elect to with-
hold their rent where justified, (b) allows rent to be placed in escrow
for the repair of such violations, and (c) requires enactment of
appropriate legislation prohibiting summary eviction of such welfare
tenants.
5. That all federal departments concerned with property acqui-
sition prohibit payments for values represented by the amount of code
violations.
6. That federal departments dealing with the audit and veri-
fication of real estate and mortgage loan assets require certification,
for each property concerned, that no official complaints of code violations
are presently pending.
# i #
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Title
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Box 22, Folder 17, Document 22
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/6914b3c02ce64f7f9450482df3756112.pdf
c013b3cf2043b6c55e3666d825022446
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Transcription
A written representation of a document.
December 1, 1966
SUMMA_·1w REPORT TO T:FIE ?R~SIDEI\i'T
BY THE TASK FORCE ONT}~ CITIES
... .,
-
DJTRODUCTION
The Task Force was convened on October 28 to give con sideration to issues and proposals in four areas :
centers,
(2)
homern-mership by the poor,
Corporation, and (4)
(3)
(1)
neighborhood
Urban Development
landlord-tenant relations .
GENERAL CONCLUSIONS
Neighborhood Centers:
A federal inter - agency progr ara
should be initiated on a demonstration basis .
But t he goal should
be to shape the tot al service system of a city, so that it effectively
meets needs from the individual's viewpoint and not just to te st out
different kinds of "models II as though neighborhood centers a.r e ends in
t hemselves r ather than t he delivery ar m of the city's service system.
Homeownership by the Poor :
trying on a pilot program basis .
Is a good i dea and well worth
But it is no panacea .
It should
be made part of a. larger neighborhood i mprovement program.
It should
make mmership possible outside the slum as well as i n i ·~.
Dwellings
should be rehabilitated prior to asswnption of mmership .
Low
interest loans and rent supplements or other subsidies from owners
will be necessary .
�2.
Uroan Developr .ent Corooration :
As a means of stimulat ing
teci_r1ological and o-che r cost-s aving i nnovations, it is an attr active
idea .
But it must be done on a large enough sc ale if it is to have
any i mpact .
A number of risks ar e involved.
Fir,. commitments on t he
availab ility of low- interest loans and rent supplements must be made .
Landlord - ten2.nt relations :
The federal government ha s present
authority, and can issue additional administr ative regulations , to
help tenants by requiring vigorous code enforcement a s a condi tion
of
federal assistance .
In addition, consideration should be given to
using welfare payments as lever age to correct serious code violation s
by l andlords .
s·lmn areas .
HlJ1)
1
s aid program for code enforcement should be used in
A National I nstitute of Urban Housing Law should be es -
tablished .
fl :ff
,t "
·
�
Text
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December 1, 1965
SUMMARY REPORT TO THE PRESIDENT
BY THE TASK FORCE ON THe CITIES
TNTRODUCTION
The Task Force was convened on October 28 to give con-
sideration to issues and proposals in four areas: (1) neighborhood
centers, (2) homeownership by the poor, (3) Urban Development
Corporation, and (4) landlord-tenant relations.
GENERAL CONCLUSIONS
Neighborhood Centers: A federal inter-agency program
should be initisted on a demonstration basis. But the goal should :
be to shape the total service system of a city, so that it effectively
meets needs from the individual's viewpoint and not just to test out
different kinds of "models" as though neighborhood centers are ends in
themselves rather than the delivery arm of the city's service system.
Homeownership by the Poor: Is a good idea and well worth
trying on a pilot program basis. But it is no panacea. It should
be made part of a larger neighborhood improvement program. It should
make ownership possible outside the slum as well as in is. Dwellings
should be rehabilitated prior to assumption of ownership. Low
interest loans and rent supplements or other subsidies from owners
will be necessary.
Urban Development Corporation: As & means of stimulating
ce
echnological and other cost-saving innovations, it is an attractive
ea. But it must be done on a large enough scale if it is to have
‘a
Pu
any impact. A number of risks are involved. Firm commitments on the
availability of low-interest loans and rent supplements must be made.
Landlord-tensent relations: The federal government hes present
euthority, and can issue additional administrative regulations, to
help tenants by requiring vigorous code enforcement as a condition
a
ederal assistance. In addition, consideration should be given to
Fy
or
using welfare payments as leverage to correct serious code violations
by landlords. HUD's aid program for code enforcement should be used in
slum areas. A National Institute of Urban Housing Law should be es-
teblished.
Oe al
wot #
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Title
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Box 22, Folder 17, Document 23
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/4c8f1268c4d0d3b369585d17475fa9dc.pdf
9f1177dbeec021c69a501356e6141b89
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Transcription
A written representation of a document.
SlJi,~,_;_/illy STATEJ'l.lEI,iT ON 1JEIGHBORHOOD CENTERS
The Ta sk Force is concerned over what appears to be a
tendency to look at ne i ghb orhood centers through t he i·r.cong end of
the telescope .
The quest ion is not how many cente rs we need, n or whether
t hey should be pure information centers , di agnosis centers, one stop r:mlti - purpose centers, or othe r combinations .
The ques tion is how to t ake the bewildering maze of
pr e sent social service s (broadly defined)- a..'1.d develop a system
for delivering those services in a manner th.s.t ma..1-rn s sense from the
st andpoint of the men, women , and children who need he l p the most.
Ne i ghb orh ood centers c an serve as the delivery ar m for the
city's system of social services .
They can serve effectively, however, only if the city's
system is rationally orgru1iz ed to :provide coordinated and mutually
reinfor cing s ervices in a manner that genuine ly meets the consumer's
needs .
They cannot
and should not - - be come small repli c as that
simply mirror and se ek to compete wit h the larger institutions that
make up the pr e sent dis or g anized
system .
In t he long run that woul d
only add one more twist to an already t ortuous maze .
Unless there is reorgani zation at the federal, s t ate , and
local l evel t o develop a system that is tailored from the viewpoint
oi t he i ndividual's needs, the establishment of neighborhood centers
in every ghetto of America wil l have little lasting value.
�Recommendations:
1.
The Task Force therefore recommends:
That the proposed inter-agency demonstration in 14
cities negotiate only with cities willing to develop plans and mechanisms
for the coordination and rational delivery of its service system.
2.
That, to the extent possible, this inter-agency demonstra-
tion be carried out in cities participating in the Model Cities Program.
3.
That the inter-agency steering committee be directed to
study and make recommendations for revision of federal statutory and
administrative regulations that would contribute to the development
of a coordinated system
4.
That, to provide greater funding flexibility, legislation
should be sought to enable HUD to use present funds for services as well
as physical facilities.
5,
That any neighborhood c~nters established be equipped with
the mandate and resources to serve as an effective catalyst, influence and
advocate for making the total system more responsive -to individual's needs.
6.
That the program be carried out with maximum participation
and involvement of the people to be served.
I
I
I
_,,...-
I
~
�
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.
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SUMMARY STATEMENT ON NETGECORHOOD CENTERS
|
The Task Force is concerned over what appeers to be a
tendency to look at neighborhood centers through the wrong end of
whe telescope.
The question is not how many centers we need, nor whether
they should be pure information centers, diagnosis centers, one-
stop multi-purpose centers, or other combinations.
The acuestion is how to take the bewildering maze or
present social services (broadly defined). and develop a system
ror delivering those services in a manner that makes sense from the
standpoint of the men, women, and children who need help the most.
Neighborhood centers can serve as the delivery erm for the
city's system of social services.
They can serve effectively, however, only if the city's
system is rationally organized to provide coordinated and mutually
reinforcing services in a manner thet genuinely meets the consumer's
needs,
They cannot -- and should not -- become small replicas that
simply mirror and seek to compete with the larger institutions thet
up the present disorganized system. In the long run that would
@
mak
only add one more twist to an already tortuous maze.
Unless there is reorganization at the federal, state, and
locel level to develop a system that is tailored from the viewpoint
of the individual's needs, the establishment of neighborhood centers
in every ghetto of America will have little lasting value.
ede
Recommendations: The Task Force therefore recommends:
1. That the proposed inter-agency demonstration in 14
cities negotiate only with cities willing to develop plans and mechanisms
for the coordination and rational delivery of its service system.
2. That, to the extent possible, this inter-agency demonstra-
tion be carried out in cities participating in the Model Cities Program.
3. That the inter-agency steering committee be directed to
study and make recommendations for revision of federal statutory and |
administrative regulations that would contribute to the development
of a coordinated system ;
4, That, to provide greater funding flexibility, legislation
should be sought to enable HUD to use present funds for services as well
as physical facilities.
5. That any neighborhood centers established be equipped with
the mandate and resources to serve as an effective catalyst,influence and
advocate for making the total system more responsive to individual's needs.
6. That the program be carried out with maximum participation
and involvement of the people to be served.
# # #
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Box 22, Folder 17, Document 24
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
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https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/9b3b4a2c1721686335728abdef6a15d7.pdf
26ab5dcd6d6b02fffd811ee32edb83c8
Scripto
Transcription
A written representation of a document.
SUBCOMM ITT EE REPO RT ON PROMOT ING HOME
OWNERSH IP AMONG SLUM RES IDENTS
I.
Fact ua l Background
l.
2.
3.
The federal governmen t already prov ides a very significant subs idy for home ownership among middle-income and upper- income groups t hrough income tax deduc tions
for int erest and property taxes.
a.
In 1962, th is subsidy amounted to a $2.9 bi llion tax saving for midd le- and
upper- income groups.
b.
The uppermost 20% of a ll fami lies (w ith incomes over $9, 000) rece ived a
subsidy o f $1 . 7 bil lion in 1962 - o r doub le the total 1962 housing subs idy
given 1·0 th e lowermost 20% in t he fo rm o f public housing costs, welfare
hous ing payments, and tax deductions combined.
In ge neral, own e r-occupied ho mes in slum areas a re in better physica l condit io n
t han ren t e r-occupied homes. However, this may result from the fac t t hat owners
genera lly have higher incomes and mo re assets than ren t ers, rath er than from
ownership per se .
a.
Th e proport ion of substa nda rd uni ts a mong fami lies w ith inco mes be low $4 , 000
in c ent ra l cities in 1960 was 8% for own er-occupied uni ts a nd 21% for renteroccupied un its.
b.
The pro po rt ion o f unso und dwe lling un its among a ll fam i ies in c entra l citi es
in 1960 wa s 11% fo r owner-occupie d un its and 33% for ren t er-occupied un its .
c.
Th ere is a st rong consensus a mong housing expe rts and so cia l wo rkers ex perienc e d
in slums tha t prov iding fa mi ies who want to own homes w it h a chanc e to do so
wo ul d induc e signifi cantl y grea ter responsibil ity on t he ir part towa rd ma intenan c e
o f bot h property and genera I neighborhood cond itio ns.
Low-income residen ts get less qua lity pe r do lla r of rent than higher-income residents,
and non - white get less t han w h tes.
0
a.
In Houston , 80% o f low-in co me families pay ing $40 to $60 pe r month rent
Iived in deterio ra ti ng or dila pida ted units, as compa red to only 21 % o f
families with incomes o f $3, 000 to $6,000 payin g the same rents . Similar
fi ndings (but less ext re me) were ma de in all cities recentl y studied.
b.
In Chi cago, w hites a nd non-whHes both pai d a median rent of $88 per month
in 1960 , but the med ian unit fo r non - w hites was small e r and mo re crowded,
and 30 . 7% o f a ll non-white occupied units were deteriorating or dilapidated,
as compared w ith 11. 6% of al! white-occupied units.
�-2-
4.
Absentee ownership is higher in slum areas than in non-sl°um areas for comparable
types of property. However, this could be a result of slum cond itions (for example,
many peop le wealthy enough to be owners may not want to live in slums) rather
than a cause of t hem.
5.
Res iden ts o f poveri·y areas and racia l gheHos consider obtaining decent housing to
be one of their most significan t prob lems. Yet they often feel frustrated by their
apparent inabi Iity i·o improve their housing conditions through their own action.
a.
II~
111.
Most soc ial workers and other o bservers of slums believe that many very lowincome families have a strong desire l·o own their own homes.
Objecti v es of Programs Encouragi ng Ho me O w nership
1.
Providing more persons living in s lums wi t h an opportunity of shaping their own
destiny regard ing the na t ure and condition of the ir housing. Thi$ would help t hem
(a) develop a stake in society, (b) derive signifi cant benefits from governmental
and other institutions they now regard wi th suspicion or host i lity, (c) learn how to
make good use of such institutions, and (d) increase the feelings of self-estee m,
pride, and adequacy which are so batt~red by life in s lum areas.
2.
Improving the quality of housing occupied by s lum dwellers, and the qua lity they
receive per dollar of expenditure on housing.
3.
Providing a greater incentive for s lum a'wel lers to better mainta in the pro perty they
Iive in, and to generally improve their own Iives.
4.
Improv ing landlord-tenant rela tions among slum dwellers by shifti ng fro m absentee
to resident landlo rds.
5.
Prov iding easier and more widely accessible means for some slum fami Iies to " escape"
from s lum areas by buying ho mes in non-slum and non-ghetto areas wh ich are nearer
to new sources of jobs and have better-q ua lity env i ronments and government servic_e s.
Constraints Under Which Any Programs Should Operate
1.
Programs encouraging home ownership among persons now liv ing in s lums should
involve two major facets: improving housing conditions and household morale in
slum areas, and helping households now living in those areas move to better
neighborhoods. Neither of these facets should be neglected.
a.
Those parts of any program concerned wi th slum areas themselves should be
linked w ith re habili tation of housing in such areas.
b.
Those parts of any program concerned with helping people move out of s lums
need not be linked w ith rehabilitation.
�-32.
3.
4.
Home-ownership-encourag ing programs shou ld be tried and developed only in three
types of a reas:
a.
Slum areas where the en i·ire env ironmen t is being upgraded through o ther
programs, such as improved government services, better schoo ls, intensive
socia l work, etc. Ownership a lone is no t a panacea and c anno t co pe with
a ll t he dep ressive factors in s lums. Hence s lum ownership programs should
be tied in wii-h Model C ities Prog rams.
b.
O lder bui· well-established and stabl e neighborhoods genera ll y in good
physical cond ii"ion and sup p lied wi t h good-qua lity govern ment services.
In such areas, programs cou ld be both lin ked wi th rehabilitation o f t he
few run-down struc t ures presen t, o r ca rried out wi t h hous ing a lready in
good co ndition. The un its invo lved would be occup ied by e ith er new
owne rs moving in from slum areas, or present renters in the neighborhood
assuming owne rshi p .
c.
Newer and ou tl ying and suburban ne ighbo rhoods in excel len t conditio n and
supp lied wi th good-qua lity governmen l· services. Here s lum dwe ll ers would
assume own ership o f hous ing a lready in good cond ition.
Programs en cou ra gi ng ho me ownership by s lum dwellers must no t work to thei r disadvantage. These programs shou ld nei ther cause suc h ho useho lds to in v est in
property likely to deprec iate rapid ly in va lue , no r II lock them in to the s lums" and
b lock their chance to move out into better ne igh borhoods. The refore:
a.
Such programs should no t be undertaken in slum areas w here cond itions are
so bad tha t most o f t he dwe llings w ill e ventua ll y be demo li shed and replaced.
b.
Such programs shou ld not be un dertaken in any slum a reas un less 11 a ll-out 11
environment-improv ing programs are also currentl y underway.
c.
Suc h programs shou ld embody a "take-out " feature . It wou ld co nsist o f a
guarantee by some public agen cy to buy the un it ba c k from its new owne rs
within a certain time period a t no loss to them in case they decide (1) they
would rather move ou t of th e slum area altogether, (2) they cannot handle
the con tinuing burdens of owne rship, or (3) they do no t want to own this
property beca use of con tin ui ng decline in the quality of the neighborhood
as a whole. However, owners would be allowed to keep at least a portion
of any capital gains resulting from their selling their property to other
persons likely to maintain the property adequately.
Ownership-encouraging programs linked to the rehabilitation of s lum properties
should require it to occur before those properties are transferred to thei r new
owners. The costs of rehabilitation can then be built into the debt structure of
�- 4-
these properties. Such cos"i·s can ·i·hen be subs idi zed th rough (a) e 1m!naJ·ion o f any
required down-payment, (b) use of below-market-interest-rate loan fu:-i ds, (c) prov ision o f rent subsidies to tenants in resident land lo rd bui Idings, and (d) prov ision
o f owne rship subsidy paymeni·s to new owners who are not land lo rds.
5.
In order to make even t he lowest- income groups e lig ib le for these programs , 't
would be desirable to chan ge pub lic aid regu lations so that we lfare payments fo r
hous ing cou ld be appl ied against debt service and other ownershi p costs as we
as a gainst rent.
6.
Such programs shou ld not resu li· in the reaping of large profits by a bsentee owne rs
who have refused to keep up th e ir propert ies, but who are required by t hese programs to se l I their properi"ies to o thers.
7.
O wnership-encouragi ng programs for s lum dwel lers mus1· embody sign if cant preand post-ownersh ip counse ling and financial help admin istered by o rgan iza t ion s
located in the slum areas themselves. These supplementary programs a re essen t ' a l
to he lp t he new own ers w ith the lega l, fi nanc ial, maint enance, and rehabilita tion
prob lems they w i 11 en counter a fter assum ing own ershi p.
8.
Such pro gra ms shou ld no t requ ·re eit her the new owners or their ten an ts to ra ' se
signi fi cantly the propo rtions o f thei r in comes they spend on housing, since t ha t
pro portion is a lready high.
9.
Because o f t he uncertainty conc erning the possib le success o f owne rsh ip-encouraging programs, and the particular forms o f them wh ic h w il I be most effective , they
should be started on an experimenta l basis. This implies t ha t:
-a.
Sev e ra l different formats shou ld be started simu ltaneous ly, and eac h shou ld
be tested un der a variety of condifions.
b.
Such programs shou ld be started on a rela t ive ly sma ll sca le, a nd expanded to
larger-scale o peratio ns on ly aft er some experien ce has been ga ined about
wh ich forma ts are most e ffec tive.
c.
Ea c h experiment shou ld be designed so that its effectiven ess can be accurate ly
eval uated w ithin a rel a tive ly sho rt ti me. The obje c tives which shou ld be
weight ed most heav ily in such eva luation shou ld be those concerni ng th e pro~
gram's impact upon t he ind iv idua l househo lds and fami li es invo lved, ra th e r
than its impac t upon the phys ica l condition of housing, or th e flsca! status
o f the c ities concern e d.
d.
The federal agenc y sponso ring such programs shou ld develop a set of specifl c
formats w hic h it seeks to t est , and shou Id be sure that eac h o f th ese formats
is g iven an e ffective test in one o r mo re c ities.
�-5e.
IV.
Individual experiments shou ld be in corporated in the Mode l C ities Prog ram in
many cases, since this program has been created to stimulate and test innovations in cop ing with s lum cond itions.
9.
Programs encouraging home ownership among slum dwellers shou ld not be eva luated
in terms of their effectiveness a t sav ing money in relation to other housing programs
(such as urban renewa l o r public hous ing). They w ill probab ly cost no less than
such o ther prog rams, and perhaps more. -Bui· they can be evalua1·ed in terms of thei r
effectiveness at sav ing money in the long run by red ucing the costs of o ther programs
aimed at coping wh"h the impacts of s lum a reas upon individuals. Examples are welfare programs, po lice action, and anti-de linquen cy programs.
l 0.
Ownership-encouraging prog rams can be best undertaken when norma l market forces
are bringing about a rapid expansion in the i·otal supply of housing t hrough extensive
construction of new mu lti-fami ly and single-family homes. O therwise the add itional
demand fo r housing generated mighi· simp ly a ggrava t e any existing shortages and
drive up prices and rents, rather than increasing the supp ly ava ilable to low-income
families. This means such programs w ill func tion best when interest rates are re lative ly low rather than in a 11 tight money 11 c lima te .
Suggested Programs
l.
A program to locate s lum dwe llers now renti ng in absentee-owned bui Idings who
migh t become successful resident land lords , to find bui Idings appropriate for conv ersion from absen tee- to resident-l and lordship, and to assist the persons found to
assume own ership o f those bui !d ings.
a.
The program wou ld invo lve full subsic;lies for down payments where re uired,
and wou ld fi nance on-go ing o perating expenses and debt amortization out
o f rents.
b.
Costs o f any rehabilitation necessary to bring the buildings up to con formity
w ith re levant codes wou ld be cap ita lized into the debt structure.
c.
Below-market-interest-rate loans wou ld be used to finan c e purchase~
d.
It wou ld concentrate upon buildings now in poor condition, but still capable
o f satisfactory rehabilitation w ithout enormous costs. These buildings cou ld
be a cquired from their absen tee owners through a 11 sq ueeze-out 11 process of
code enforcement w ii-h minimum public investment.
e.
This program wou ld be applied on ly in 11 minimum-sized pieces. 11 Each
would invo lve a c erta in minimum number of buildings located c lose
together in a single block o r a few adjacent blocks. The number of uni ts
wou ld be of sufficient "c ritical mass 11 to affect the entire environment of
�-6-
the b lock or b locks invo lved . Mo reover, eac h such "critica l-mass-sized
piece" wou ld be processed simu l'·aneously and as a who le by the govern ment agency hand li ng the prog ram, ra-rher than one bui lding at a time.
2.
f.
The famil ies seek ing 1·0 become resident land lo rds unde r this program would
no t have to remain in i·he spec ifi c buil dings t hey now occupy, but shou ld be
allowed to assume ownersh ip in the neighborhoods whe re they now reside.
g.
In cases where recoverlng the cost of rehabilita tion requ ired rents ·n excess
o f the ability to pay o f loca l low-in co me ho useholds, ren t subsidies would be
linked into the ownersh ip-encouragement progra m. The combin ed effec t
wou ld (1 ) provide rehabilita ted un its for low-income renl·ers and (2) a llow
some low-income fami lies to become resident land lords in these rehabil ita t ed
bui !dings.
h.
The program shou ld be run by new, loca l ly-offic e d o rgan izations operating
under th e jurisdic i"ion of t he Ass istant Secretary 6f Housing and Urban Deve lopment for Demonstrations and Resea rc h.
(1)
Because the basi c o biec tiv e o f this program wou ld be a c hange in the
soc ial cond it io ns and men ta l a ttil- udes o f s lum dwellers., it wou ld be
des irab le fo r primary responsibility to rest in some a gen cy other than
FHA . This wou ld a llow FHA to reta in its bas ic " prudent inv estment"
o rienta tion w ithout conflkHng with the o bjectiv es o f t hi s program,
w hi ch vary from II prudent investment. 11 As lon g as this program is
muc h smaller t han FHA 's ot her activ ities (and it must be at least to
start), it wou ld be diffi cu lt for FHA to generate the necessary
enthusiasm and out look to encou rag e !·he high-risk and frank ly
experimental operat·ons essent ia l to success.
(2)
The Assistant Secreta ry shou ld set general standards of performance
and evaluat ion for the program. However, he shou ld be fre e to
c reate a variety o f specifc o rganizationa l a rrangemen ts with loca l
groups to o perate the program in different metropo litan a reas.
Examp les are non-pro fit co rporations, chu rch groups, un ions, or
city departments .
(3)
Each such organ ization shou ld opera t e loca l neighbo rhood o ffi c es to
assist new owners w ith (a) pre-ownersh i p training in housekeep ing ,
mak ing minor repa irs, and lega l responsibi lities, (b) counsel ing on
main t enance and fi nancing du ri ng the initial ownershi p period,
and (c) fo l low- on counseli ng as necessary.
A simi la r progra m to he lp ren t e rs in slum areas take over ownership o f indiv idual
un its in mu lt i-fami ly bu il d ings on a condom in ium basis (but not on a cooperati ve
ownership basis).
�-7-
a.
This program would hav e a ll o f ·i· he attributes of the first program described
above except the use o f rent subsidi es (parl· g).
b.
If the in co m_es o f the potential owners were not suffi c ient to pay the ca rrying
costs o f ownership, then an add it iona l con t inuing su bsidy cou ld be used. This
subsidy wou ld be considered the eq uiva len1· o f i·he in.terest and pro perty- tax
ded uc tion subsi dy en joyed by midd le-in co me and upper- in come househo lds.
Since low- income househo lds do not hav e enough income to benefit fro m
such ded uctions, they wou ld be given direct cash equiva lents. The higher
the income, the lower the equiva lent; t he larger the household, the hig her
the equiva lent -- o ther things being equa l .
3.
Anothe r program to he lp renters of sing le-fami ly dwe llings in slum areas ( like Watts)
i·ake over ownershi p o f their dwe llings o r o f o ther similar sing le-fam ily dwe llings
nearby . This program wou ld a lso have a ll of the a tt ributes o f th e first program desc ribed above except the use o f reni· subs idies. It wou ld make use o f in co me-ta xdeduction-equiva lents, as desc ribed under the second program set fo rth above.
4.
A fourth program design ed to encou rage slum dwel lers to mov e into non- slum areas
by buying s ing le-fam ily o r two-fam ily bui ldings, o r individua l un its in con do mini um
bui ldings, in such a reas.
a.
This prog ra m wou ld invo lve fu ll subsidies fo r downpayments where req uired.
b.
It wou ld be focuss ed upon bui Idings a lready in standard condition and therefore needing v ery li tt le rehab i litation.
c,
It wou ld invo lve indiv idua l bui ldings· scattered throughout neighborhoods containing soc io-economic lev els above th e slum areas , but not as high as upper.,.
middle-in come areas . Howev er, the condom ini um parts of the program wou ld
invo lve entire bui Idings o perated unde r the program.
d.
It wou ld incorporate the aspec ts o f the first program desc ribed a bove set fo rth ·
in paragraphs IV, 1, f-g-h . It wou ld a lso in co rporat e the cont in uing subsidy
based upon income-t ax-deduction ·eq uivalents described in paragraph IV, 2, b
above.
e.
The o rganization o pera ting this progra m should have a metropolitan-areawide jurisdiction rather than covering on ly the c entral c ity therein. In
fact, it shou ld emphasize placement o f former slum dwellers in suburban
areas where possible. Yet this organization should be the same as, or
close ly linked to, w hatev er organization administers the o ther programs
described abov e .
f.
The exact locations of the housing se lected for use in this program should be
based upon the fol low ing considerations:
�- 8-
5.
(1)
The housing un its se lected shou ld be in sound neighborhoods but sho u ld
not be far beyond the econo mi c capabi Iities of th e households moving
out of the s lums. Hen ce these househo lds mig h·i- be expec ted to assume
fu ll ownership w ithout a con ti nu ing subsidy a fter a c ertain period.
(2)
There shou ld be a mixture of Negro and white households in vo lved.
Some of the s lum move-outs shou ld resuli· in re location o f Negro
fa milies in previous ly a ll -wh ite o r predominan·tl y-whi t e areas, a nd
some shou ld resu l-r in p lacemeni· o f Negroes in previous ly Negro areas
and wh il-es in prev ious ly whi t e a reas.
(3)
In no cases should the househo lds moved out o f s lums under ·this program
be conc entrated together in the rec eiv ing neighbo rhoods i·o suc h an
exteni· as to become a dominant group in any given b lock o r elementary
schoo l d istrict.
(4)
If possible, the neigh bo rhoods chosen shou ld be c lose to the type o f
jobs possessed by the fami I ies mov ing oui· o f the s lums , and to so_urces
o f new employment o ppo rt uni ties being created in the metropolitan area.
(5)
If possible, the neighbo rhoods c hosen shou ld be parts of c il"ies benefiting fro m o ther federal programs (suc h as urban renewal, the Interstate
Highway Progra m, or federal aid to education) the contin uance o f
whic h might be linked a t least informa lly w ith wi llin ness to coo perate w ith this program. Sim il arly, this program might be linked
with defense procu rement acti v ities in commun ities be nefiting from
defense production con trac ts .
g.
This program wo u ld not invo lve the c reation o f resident land lords (exc ept in
two-unit bui !dings) by eliminatio n o f absen tee land lordsh ip .
h.
It might be desirab le to link this program w ith th e o the r programs encouraging
own ership of buildings in s lums by s lum-dwe llers . This cou ld be done through
some type of formu la wh ich wou ld require prov isio n of a certain number of
·
11 s lum-escape 11 un its for each set o f "slum-renovation " units invo lved .
Al l of the above programs should be linked to a number of o ther federa l programs or
policies aimed at reducing the impact of ethnic discrimina tion upon housing markets.
Discrimination creates a " back-pressure" in areas readily avai lable to minority groups
which tends to raise prices therein . This makes it ha rder for resi ents to own their
own homes, and reduces the incenHve of absentee lan d lo rds to improve deteriorated
slum properti e s. Among the possible ways to counteract these forces might be:
a.
Requirement that any dwe lling uni ts financed with mortgages furnished by
institutions supported by federal agencies (such as banks and savings and
loan associations) be sold or rented on a non-discriminatory basis.
�----- ·------------
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-9b.
CreaHon o f pub li c ho us ing on va c ant land, parH cu la rly in subu rban areas;
preferab ly on sca ttered sites an re la ti ve ly sma li u low- dse pro jec ts. Th is
assumes that the hous ng so c reated wou ld be ntegrai-edu preferab ly with
a Negro mino rity u ra ther than l 00 perc ent Negro.
0
0
c.
Subs diz a tion o f privat e groups des"gned to he lp Neg ro househo lds move
onto prev ious ly a ll -wh t e neighborhoods in suburbs and pe d phera l ne ighbo rhoods in c entral ci·H es. (An examp le ss the group o f th us type in Ha rtford 0
Connect icut) . Such subs idy cou ld consist o f gran Hng o f tax exemptions u o r
a llow in g the sa le o f ta x-exempt secu rit° es,. as we ll as provhbn of g rants to
cover cap ita l or ope ra ting costs.
·
0
0
V.
Estimated Costs of Owne rsh ip-En co uragement Programs Undertaken a t Va d ous Sca les
l.
Bas ic assumptions unde rl y ing l·hese cost estimates are de r°ved from FHA expe d en ce
and census data. They are as fol lows:
a.
Th e total cost o f acqu ring and rehabilitating e ither singl e-fam nl y o r m t· fam ily hous ing will be $1 2,,500 per un it .
b.
Tota l per-uni t mon -i·h ly ope rating expenses a re $48 .46 for sing le-fam ily
houses, and $49 . 42 for mu lti -fam ly bu il d ings (i nc lud ing a $9 a lowan ce
for vacancy and contingencies but no a Ilowance for management fees).
0
0
c.
Househo ld inc o mes have ri sen about 25% since 1959, when t he in come d istribution among occupan ts of substandard hous·ng uni ts who ea rned less than
$6,000 per yea r was as fo ll ows:
Unde r $2,000
$2,999
17 . 2%
$3;000 - $3, 999
13.5%
$4,000 - $4, 999
9.3%
$5,000 - $5v999
6 . 4%
$2,000
Tota l
d.
51.9%
100 .0%
Th e proposed prog rams will extend ass istance to members of a ll th ese ·ncome
groups proportionately . Henc e ca lcu lotions about the total subsidy re quired
can be based upon th e we ighted average 1965 in come o f th e entire group,
which as $2,840 per year.
�- 10-
e.
Househo lds can devote 25% o f t heir incomes to housing. Thss a mo un ts to a
we ghted average of $59.16 per mon1-h for th e en f re g roup invo ved.
0
2.
f.
A ! costs of acq uisition a nd re ha bi ta tion w "I be :nco rporat ed nto the tota l
in "Ha l loan and amo rtazed over a 30-year period on a no-dow n- payme, t bas·s.
g.
Mu lt"-fam!!y p rograms w ill uta aze 12-un it buo! d ings and provode no ex p!k H
a llowance for owner profts.
0
0
These assumpt 'ons lead to t he fo l owing conc lus'ons:
a.
The annua I ra t e of d h e c t subs idy per un H, not coun ti ng ad mi nistra tive costs or
losses of int e rest from be low-markel- ra i·es,. wou ld be $504 fo r a seng le-fa mq y
program a nd $5 16 for a mult~-famely program at a 3% nt e rest ra t e. Hence
direct subsid ies per un it a re very similar fo r the two programs.
0
b.
D rect subs idy costs a re ve ry sensit°ve to c ha nges in int erest ra te . For a s ngl efa mi y program, the va ria t on is fro m $772 per uni t per year a t 6% to $504 a t
3% and $288 a t z e ro nteres1. However g if losses in int erest a re co nted a s
costs, th s sensitiv ity drops to zero.
0
0
0
0
0
c.
Direct subsedy costs are a lso very sensitive to c hanges in the ·ncome-co mpos1t"on of the groups serve d. Exc luding fam H°es w"th inco mes below $20 000 ra ~ses
the we "ght ed average a mou ,t ava "lable per month fo r hous ing fro m $59 . 16 to
$94 .88 . This reduc es the annua l s'ngle- fam ily subsidy a t 3% 'nterest from
$504 per un it to $75 - - a drop of 85% . However, it a lso exc ludes 52% o f
the ho use ho lds w ith incomes unde r $6 8 000 liv ing in substa nda rd hous"ng.
d.
To·ta l costs a t va d o us sca les o f operatcon (exc luding a dministratuon) a re snmll a r
fo r both song! e-fa mal y and mu lti -famoly programs. Hen ce they ca n both be
1tl ustrated by the fo iow cng ta ble for singl e-family pro gra ms,. assumong a 3%
int e rest ra te :
Number o f Housing Units
Annual Direct
Subsidy Charges
($ m· I lions)
Requi red !nut[a i Loan
Fund A llocat·ons
($ m 1!'ons)
0
$
62 . 5
5;000
$ 2 . 520
10,.000
5.040
125 . 0
25g000
12. 600
312.5
50,000
25 . 200
625 . 0
50.400
1,250 .0
�- 11 -
e.
3.
Th e above tab le ·s based upon pro po rt·ona i pa rt dpat ion by a H uncome groups
un der $6, 000 pe r year. Va·ia tions in tota l cosi·s a t th ese sca les res u ltung from
changes ·n int erest ra t es or in come-g roup compos itio n can be roug h ly est; ma t ed
from po ints (b) and (c) a bove.
0
The s"gn· .c·cance of th e sca le of ho me-owne rsh ip programs depends upon the tota l
number of s lum fam i ies Bv ng ·n substanda rd hous ng who wou ld Hke to beco me
owners •
0
0
.
4.
a.
n 1960, t he re we re 6.9 millio n ren te r househo lds lov ing ·n cent ra l c Hes.
Aboul· 818, 000 (1 2%1 le ved in substanda rd un its; 508 , 000 of these had ~ri comes
unde r $4, 000. Ano t her 992,000 (14%) lived in standard but c rowded un its;
390,000 o f these had oncomes unde r $4u 000. Hence th e paten-Ha ! centra l..:
d ty "unive rse" consists o f 1.8 m' llion ren t ers in substandard or c rowded Lm!ts 17
o f whom 898 1 000 had incomes under $4,000 in 1960. Of course., now he re
nea r a l I of these househo lds wish to become owners.
b.
There w e re ac t ua ll y more renter househo lds in substandard un' ts o uts;de c entra l
c ities t han ins ide th em in 1960: 1,923; 000 vs. 818 8 000. Howeve r, except
for 205 , 000 local·ed in the urban fringes o f metropo litan a reas, t hese househo lds shou ld perhaps no t be co nsidered as "s lu m res idents. 11
0
is
The cost o f home-owne rsh ip programs sim il a r to tha t o f ren t supp lement prog rams 8
coun t 'ng on !y direc t subsidy pay ments. The d rect rent supp lemen t s bs udy a verages
about $600 per uni t per yea , as co mpared to $504 pe r uni t per yea r for scng !efamily ho me ownership a t 3% interest. Howev er, if interest losses due to below market rates are co unted, th en another $268 per un H per yea r must be added (H
th e market ra t e ·s conside red to be 6%). Th s inc r~ases the per un it per year cost
o f th e home- ownershop prog ram to abou t· 29% a bove that fo r th e ren t supp lement
prog ram, exc luding adm in°st ra ti ve costs from both .
0
0
VI.
Recommended Add st°o!1a l Researc h
1.
Some o f the concepts and quant fned esta ma t es set forth abov e have been based
upo n adm tted !y [n adequa t e o r unreHab le da ta. Therefore, we recommend t hat
additiona l resea rc h be undertaken before the programs described here ln a re g uven
flnal app rova l in concept or designed in detail.
0
0
2.
Consequent ly,, re li ab le information about the fo l lowing shou ld be o bta ined:
a.
Ac cura t e est ·mat es of tota l operat'ng costs for mu lti -fam ily hous b g to be
deve loped under any owne rsh ip program. Th e opera ti ng cost estlma t es a n d
conti ngency a llowances used 1n t he above ca lcu la tions were sup p!o ed by
FHA . Howeve r.v we be lieve they may be low v because opera ti ng costs
no rma l!y run 60% of to ta l g ross revenue 6 and no t all funds ava il ab le for
debt service are actua ll y app lied to debt service.
�-12b.
Th e required a tt ribut es of home owne rs in slums . Probab ly they revolve around
steady emp loymen t , ·rhe a va il abi lity of mu lti p le fam ly membe rs some o f wh o m
are ho me and ca n keep i"rac k of t he pro per·'·y , reasonab ly good c harac ter reco rd,
etc.
0
c.
The spec ifi c urban areas c lassified as s lum a reas for pu rposes o f these programs,
a nd c ertain da ta about them .
(1)
Number o f dwe lling un its by ·' ype o f struc t ure : sma ll mu lti - fam i y, la rge
mu lti - fam il y, a nd sing le fam ily .
(2)
Number of ho useho lds li ving t herein a nd their ma jo r inco me, ethni c ,
a nd fami ly size c haraderisti cs .
(3)
Condi t io n o f structures.
d.
The numbe r o f pe rso ns o r ho useho l s in i·hese areas who hav e the requ·red
c harac teristi cs for ownership, abso ute ly and as a perc entage o f the tota l.
e.
Ways in whi c h ownersh ip programs can be ti ed into over-a ll stra i"egi es conc erning low-in co me ho using and th e ame li o ratio n o f gheHos so t hat they do
no t mere ly perpet uate s lums by II lock"ng in 11 the new owners of o ld bui ldings.
�
Text
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SUBCOMMITTEE REPORT ON PROMOTING HOME
OW NERSHIP AMONG SLUM RESIDENTS
I, Factual Background
1.
The federal government already provides a very significant subsidy for home owner-
ship among middle-income and upper-income groups through income tax deductions
for interest and property taxes.
a.
In 1962, this subsidy amounted to a $2.9 biilion tax saving for middle- and
upper-income groups.
The uppermost 20% of all families (with incomes over $9,000) received a
subsidy of $1.7 billion in 1962 — or double the total 1962 housing subsidy
given to the lowermost 20% in the form of public housing costs, welfare
housing paymenis, and tax deductions combined.
In general, owner-occupied homes in slum areas are in better physical condition
than renter-occupied homes. However, this may result from the fact that owners
generally have higher incomes and more assets than renters, rather than from
ownership per se.
a.
The proportion of substandard units among families with incomes below $4,000
in central cities in 1960 was 8% for owner-occupied units and 21% for renter=
occupied units.
The proportion of unsound dwelling units among all families in central cities
in 1960 was 11% tor owner-occupied units and 33% for renter-occupied units.
There is a strong consensus among housing experts and social workers experienced
in slums that providing families who want to own homes with a chance jo do so
would induce significantly greater responsibility on their part toward maintenance
of both property and general neighborhood conditions.
Low-income residents get less quality per dollar of rent than higher-income residents,
and non-white get less than whites.
a.
In Houston, 80% of low-income families paying $40 to $60 per month rent
lived in deteriorating or dilapidated units, as compared to only 21% of
families with incomes of $3,000 to $6,000 paying the same rents. Similar
findings (but less extreme) were made in all cities recently studied.
In Chicago, whites and non=whites both paid a median rent of $88 per month
in 1960, but the median unit for non-whites was smaller and more crowded,
and 30.7% of all non-white occupied units were deteriorating or dilapidated,
as compared with 11.6% of all white-occupied units.
ll.
ith:
a
Absentee ownership is higher in slum areas than in non=slum areas for comparable
types of property. However, this could be a result of slum conditions (for example,
many people wealthy enough to be owners may not want to live in slums) rather
than a cause of them. .
Residents of poverty areas and racial ghettos consider obtaining decent housing fo
be one of their most significant problems. Yet they often feel frustrated by their
apparent inability to improve their housing conditions through their own action.
a. Most social workers and other observers of slums believe that many very low-
income families have a strong desire to own their own homes.
Objectives of Programs Encouraging Home Ownership
i
Providing more persons living in slums with an opportunity of shaping their own
destiny regarding the nature and condition of their housing. This would help them
(a) develop a stake in society, (b) derive significant benefits from governmental
and other institutions they now regard with suspicion or hostility, (c) learn how to
make good use of such institutions, and (d) increase the feelings of self-esteem,
pride, and adequacy which are so batiered by life in slum areas.
Improving the quality of housing occupied by slum dwellers, and the quality they
receive per dollar of expenditure on housing.
Providing a greater incentive for slum dwellers to better maintain the property they
live in, and to generally improve their own lives.
Improving landlord-tenanit relations among slum dwellers by shifting from absentee
to resident landlords.
Providing easier and more widely accessible means for some slum families to “escape"
from slum areas by buying homes in non=slum and non=ghetio areas which are nearer
to new sources of jobs and have betier-quality environments and govemment services.
Constraints Under Which Any Programs Should Operate
ts
Programs encouraging home ownership among persons now living in slums should
involve two major facets: improving housing conditions and household morale in
slum areas, and helping households now living in those areas move to better
neighborhoods. Neither of these facets should be neglected.
a, ‘Those parts of any program concerned with slum areas themselves should be
linked with rehabilitation of housing in such areas.
b. Those parts of any program concerned with helping people move out of slums
need not be linked with rehabilitation.
~3-
2. Home-ownership-encouraging programs should be tried and developed only in three
types of areas:
a. Slum areas where the entire environment is being upgraded through other
programs, such as improved government services, better schools, intensive
social work, ete. Ownership alone is not a panacea and cannot cope with
all the depressive factors in slums. Hence slum ownership programs should
be tied in with Model Cities Programs.
b. Older but well-established and stable neighborhoods generally in good
physical condition and supplied with good-quality government services.
In such areas, programs could be both linked with rehabilitation of the
few run-down siructures present, or carried out with housing already in
good condition. The uniis involved would be occupied by either new
owners moving in from slum areas, or present renters in the neighborhood
assuming ownership.
¢. | Newer and outlying and suburban neighborhoods in excellent condition and
supplied with good-quality governmeni services. Here slum dwellers would
assume ownership of housing already in good condition.
3. Programs encouraging home ownership by slum dwellers must not work to their dis-
advantage. These programs should neither cause such households to invest in
property likely to depreciate rapidly in value, nor "lock them into the slums" and
block their chance to move out into better neighborhoods. Therefore:
a. Such programs should not be undertaken in slum areas where conditions are
so bad that most of the dwellings will eventually be demolished and replaced.
b. | Such programs should not be undertaken in any slum areas unless "all-out"
environment=improving programs are also currently underway.
¢. Such programs should embody a "take-out" feature. [It would consist of a
guarantee by some public agency to buy the unit back from iis new owners
within a certain time period at no loss to them in case they decide (1) they
would rather move out of the slum area altogether, (2) they cannot handle
the continuing burdens of ownership, or (3) they do not want to own this
property because of continuing decline in the quality of the neighborhood
as a whole. However, owners would be allowed to keep at least a portion
of any capital gains resulting from their selling their property to other
persons likely to maintain the property adequately.
4. Ownership-encouraging programs linked to the rehabilitation of slum properties
should require it to occur before those properties are transferred to their new
owners. The costs of rehabilitation can then be built into the debt structure of
sibs
these properties. Such costs can then be subsidized through (a) elimination of any
required down-payment, (b) use of below-market=inierest-rate loan funds, (c) pro=
vision of rent subsidies to tenants in resident landlord buildings, and (d) provision
of ownership subsidy payments to new owners who are not landlords.
In order to make even the lowest-income groups eligible for these programs, it
would be desirable to change public aid regulations so that welfare payments for
housing could be applied against debi service and other ownership cosis as weil
as against rent.
Such programs should not result in the reaping of large profits by absentee owners
who have refused to keep up their properties, but who are required by these pro-
grams to sell their properties to others.
Ownership-encouraging programs for slum dwellers must embody significant pre-
and post-ownership counseling and financial help administered by organizations
located in the slum areas themselves. These supplementary programs are essential
to help the new owners with the legal, financial, maintenance, and rehabilitation
problems they will encounter after assuming ownership.
Such programs should not require either the new owners or their tenanis to raise
significantly the proportions of their incomes they spend on housing, since that
proportion is already high.
Because of the uncertainty conceming the possible success of ownership=encourag-
ing programs, and the particular forms of them which will be most effective, they
should be started on an experimental basis, This implies that:
a. Several different formats should be started simulianeously, and each should
be tested under a variety of conditions.
b. | Such programs should be started on a relatively small scale, and expanded to
larger-scale operations only after some experience has been gained about
which formats are most effective.
cs Each experiment should be designed so that its effectiveness can be accurately
evaluated within a relatively short time. The objectives which should be
weighted most heavily in such evaluation should be those conceming the pro=
gram's impact upon the individual households and families involved, rather
than its impact upon the physical condition of housing, or the fiscal status
of the cities concemed.
d. The federal agency sponsoring such programs should develop a set of specific
formats which it seeks to test, and should be sure that each of these formats
is given an effective test in one or more cities.
10,
=5-
e. Individual experiments should be incorporated in the Model Cities Program in
many cases, since this program has been created to stimulate and test innova-
tions in coping with slum conditions.
Programs encouraging home ownership among slum dwellers should not be evaluated
in terms of their effectiveness at saving money in relation to other housing programs
(such as urban renewal or public housing). They will probably cos no Tess than
such other programs, and perhaps more. -But they can be evaluated in terms of their
effectiveness at saving money in the long run by reducing the costs of other programs
aimed at coping with the impacis of slum areas upon individuals. Examples are wel-
fare programs, police action, and anti-delinquency programs.
Ownership-encouraging programs can be best undertaken when normal market forces
are bringing about a rapid expansion in the total supply of housing through extensive
construction of new multi-family and single-family homes. Otherwise the additional
demand for housing generated might simply aggravate any existing shortages and
drive up prices and rents, rather than increasing the supply available to low-income
families. This means such programs will function best when interest rates are rela-
tively low rather than in a "tight money" climate.
IV. Suggested Programs
1.
A program to locate slum dwellers now renting in absentee-owned buildings who
might become successful resident landlords, to find buildings appropriate for con-
version from absentee= to resident-landlordship, and to assist the persons found to
assume ownership of those buildings.
a. The program would involve full subsidies for down payments where required,
and would finance on-going operating expenses and debi amortization out
of rents.
b. Costs of any rehabilitation necessary to bring the buildings up to conformity
with relevant codes would be capitalized into the debt structure.
c. Below=-market-interesi-rate loans would be used fo finance purchase.
d. It would concentrate upon buildings now in poor condition, but still capable
of satisfactory rehabilitation without enormous costs. These buildings could
be acquired from their absentee owners through a "squeeze-out" process of
code enforcement with minimum public investmeni.
e. This program would be applied only in "“minimum=sized pieces." Each
would involve a certain minimum number of buildings located close
together in a single block or a few adjacent blocks. The number of units
would be of sufficient "critical mass" to affect the entire environment of
ahi
the block or blocks involved. Moreover, each such "critical-mass-sized
piece" would be processed simultaneously and as a whole by the govern-
ment agency handling the program, rather than one building at a time.
F. The families seeking to become resident landlords under this program would
not have io remain in the specific buildings they now occupy, but should be
allowed to assume ownership in the neighborhoods where they now reside.
g. In cases where recovering the cost of rehabilitation required rents in excess
of the ability to pay of local low-income households, rent subsidies would be
linked into the ownership-encouragement program. The combined effect
would (1) provide rehabilitated units for low-income renters and (2) allow
some low-income families to become resident landlords in these rehabilitated
buildings.
h. The program should be run by new, locally-officed organizations operating
under the jurisdiction of the Assistant Secretary of Housing and Urban Develop-
ment for Demonstrations and Research.
(i) | Because the basic objective of this program would be a change in the
social conditions and menial attitudes of slum dwellers, it would be
desirable for primary responsibility to rest in some agency other than
FHA. This would allow FHA jo retain its basic "prudent investment"
orientation without conflicting with the objectives of this program,
which vary from "prudent investment." As long as this program is
much smaller than FHA's other activities (and it must be at least to
start), it would be difficult for FHA to generate the necessary
enthusiasm and outlook to encourage the high-risk and frankly
experimental operations essential to success.
(2) The Assistant Secretary should set general standards of performance
and evaluation for the program. However, he should be free to
create a variety of specific organizational arrangements with local
groups to operate the program in different metropolitan areas.
Examples are non-profit corporations, church groups, unions, or
city departments.
(3) | Each such organization should operate local neighborhood offices to
assist new owners with (a) pre-ownership training in housekeeping,
making minor repairs, and legal responsibilities, (b) counseling on
maintenance and financing during the initial ownership period,
and (c) follow-on counseling as necessary.
2. Asimilar program to help renters in slum areas take over ownership of individual
units in multi-family buildings on a condominium basis (but not on a cooperative
ownership basis).
“fx
a. This program would have all of the attributes of the first program described
above except the use of rent subsidies (part g),
b. lf the incomes of the potential owners were noi sufficient to pay the carrying
costs of ownership, then an additional continuing subsidy could be used. This
subsidy would be considered the equivalent of the interest and property-tax
deduction subsidy enjoyed by middle-income and upper-income households.
Since low-income households do not have enough income to benefit from
such deductions, they would be given direct cash equivalents. The higher
the income, the lower the equivalent; the larger the household, the higher
the equivalent -- other things being equal.
Another program jo help renters of single-family dwellings in slum areas (like Wats)
take over ownership of their dwellings or of other similar single-family dwellings
nearby. This program would also have all of the attributes of the first program des-
cribed above excepi the use of rent subsidies. It would make use of income-tax-
deduction-equivalenis, as described under the second program set forth above.
A fourth program designed to encourage slum dwellers to move into non=slum areas
by buying single-family or iwo-family buildings, or individual units in condominium
buildings, in such areas.
a. This program would involve full subsidies for downpayments where required.
b, lt would be focussed upon buildings already in standard condition and there=-
fore needing very little rehabilitation.
ts lt would involve individual buildings scattered throughout neighborhoods con=
taining socio-economic levels above the slum areas, but not as high as upper=
middle-income areas. However, the condominium parts of the program would
involve entire buildings operated under the program.
d. lt would incorporate the aspects of the first program described above sei forth
in paragraphs IV, 1, feg-h. [i would also incorporate the continuing subsidy
based upon income-tax-deduction equivalents described in paragraph IV, 2, b
above.
e. The organization operating this program should have a mefropolitan-area-
wide jurisdiction rather than covering only the central city therein. In
fact, it should emphasize placement of former slum dwellers in suburban
areas where possible. Yet this organization should be the same as, or
closely linked to, whatever organization administers the other programs
described above.
f, The exact locations of the housing selected for use in this program should be
based upon the following considerations;
(1)
(2)
(3)
(4)
(5)
-3-
The housing units selected should be in sound neighborhoods but should
not be far beyond the economic capabilities of the households moving
out of the slums. Hence these households might be expected to assume
full ownership without a continuing subsidy after a certain period.
There should be a mixiure of Negro and white households involved.
Some of the slum move-outs should result in relocation of Negro
families in previously all-white or predominanitly-white areas, and
some should result in placement of Negroes in previously Negro areas
and whites in previously white areas.
In no cases should the households moved out of slums under this program
be concentrated together in the receiving neighborhoods to such an
extent as io become a dominant group in any given block or elementary
school district.
If possible, the neighborhoods chosen should be close to the type of
jobs possessed by the families moving oui of the slums, and to sources
of new employment opporiunities being created in the metropolitan area.
If possible, the neighborhoods chosen should be paris of cities benefit-
ing from other federal programs (such as urban renewal, the Interstate
Highway Program, or federal aid to education) the continuance of
which might be linked at least informally with willingness to co-
operate with this program. Similarly, this program might be linked
with defense procurement activities in communities benefiting from
defense production coniracis.
g. This program would not involve the creation of resident landlords (except in
two-unit buildings) by elimination of absentee landlordship.
h. |i might be desirable to link this program with the other programs encouraging
ownership of buildings in slums by slum=-dwellers. This could be done through
some type of formula which would require provision of a certain number of
“slum=escape" units for each set of "slum=renovation" units involved.
All of the above programs should be linked to a number of other federal programs or
policies aimed at reducing the impact of ethnic discrimination upon housing markets.
Discrimination creates a “back-pressure" in areas readily available to minority groups
which tends to raise prices therein. This makes it harder for residents to own their
own homes, and reduces the incentive of absentee landlords to improve deteriorated
slum properties. Among the possible ways to counteract these forces might be;
a. Requirement that any dwelling units financed with mortgages fumished by
institutions supported by federal agencies (such as banks and savings and
loan associations) be sold or rented on a non=discriminatory basis.
29s
b, Creation of public housing on vacant land, particularly fn suburban areas,
preferably on scattered sites in relatively small, low-rise projects. This
assumes that the housing so created would be integrated, preferably with
a Negro minority, rather than 100 percent Negro.
c. Subsidization of private groups designed to help Negro households move
into previously all-white neighborhoods in suburbs and peripheral neighbor-
hoods in central cities. (An example is the group of this type in Hartford,
Connecticut), Such subsidy could consist of granting of tax exemptions, or
allowing the sale of tax-exempi securities, as wel! as provision of grants fo
cover capital or operating cosis.
V. Estimated Costs of Ownership-Encouragement Programs Undertaken at Various Scales
l, Basic assumptions underlying these cost estimates are derived from FHA experience
and census data. They are as follows:
a. The total cost of acquiring and rehabilitating either single-family or mulii=
family housing will be $12,500 per unit.
b. Total per-unit monthly operating expenses are $48.46 for single-family
houses, and $49.42 for multi-family buildings (including a $9 allowance
for vacancy and contingencies but no allowance for managemeni fees),
Cs Household incomes have risen about 25% since 1959, when the income dis-
tribution among occupants of substandard housing units who earned less than
$6,000 per year was as follows:
Under $2,000 51.9%
$2,000 - $2,999 17.2%
$3,000 - $3,999 13.5%
$4,000 = $4,999 9.3%
$5,000 - $5,999 6.4%
Total 100.0%
d. The proposed programs wil! extend assistance to members of all these income
groups proportionately. Hence calculations about the total subsidy required
can be based upon the weighted average 1965 income of the entire group,
which is $2,840 per year,
2.
These
-10=
Households can devote 25% of their incomes to housing. This amounts to a
weighted average of $59.16 per month for the entire group involved.
Al! costs of acquisition and rehabilitation will be incorporated into the jota!
initial loan and amortized over a 30-year period on a no-down=payment basis.
Multi-family programs will utilize 12-unit buildings and provide no explicit
allowance for owner profits.
assumptions lead to the following conclusions:
The annual rate of direct subsidy per unit, not counting administrative costs or
losses of interest fromm below-market rates, would be $504 for a single-family
program and $516 for a multi-family program at a 3% interest rate. Hence
direct subsidies per unit are very similar for the two programs.
Direct subsidy costs are very sensitive to changes in interest rate. Fora single-
family program, the variation is from $772 per unit per year at 6% to $504 at
3% and $288 at zero interest. However, If losses in interest are counted as
costs, this sensitivity drops to zero.
Direct subsidy cosis are also very sensitive to changes in the income-composi-
tion of the groups served. Excluding families with incomes below $2,000 raises
the weighted average amount available per month for housing from $59.16 to
$94.88. This reduces the annual single-family subsidy at 3% interest from
$504 per unit to $75 -- a drop of 85%. However, it also excludes 52% of
the households with incomes under $6,000 living in substandard housing.
Total costs at various scales of operation (excluding administration) are similar
for both single-family and multi-family programs. Hence they can both be
illustrated by the following table for single-family programs, assuming a 3%
interest rate:
Annual Direct Required Initial Loan
Subsidy Charges Fund Allocations
Number of Housing Units ($ millions) ($ mil }ions)
5,000 $ 2.520 § 62.5
10,000 5.040 125.0
25,000 12.600 312.5
50,000 25.200 625.0
100,000 50.400 1,250.0
afta
e. The above table is based upon proportional participation by all income groups
under $6,000 per year. Variations in total costs at these scales resulting from
changes in interest rates or income-group composition can be roughly estimated
from points (b) and (c) above.
The significance of the scale of home=-ownership programs depends upon the foial
number of slum families living in substandard housing who would like fo become
owners,
a. In 1960, there were 6.9 million renter households living in central cities.
About 818,000 (12%) lived in substandard units; 508,000 of these had incomes
under $4,000. Another 992,000 (14%) lived in standard but crowded uniis;
390,000 of these had incomes under $4,000. Hence the potential central-
city "universe" consists of 1.8 million renters in substandard or crowded units,
of whom 898,000 had incomes under $4,000 in 1960. Of course, nowhere
near all of these households wish to become owners.
b. There were actually more renter households in substandard units outside central
cltfes than inside them in 1960: 1,923,000 vs. 818,000. However, except
for 205,000 located in the urban fringes of metropolitan areas, these house-
holds should perhaps not be considered as "slum residents."
The cost of home-ownership programs is similar to that of rent supplement programs,
counting only direct subsidy paymenis. The direct rent supplement subsidy averages
about $600 per unit per year, as compared to $504 per unit per year for sing!e-
family home ownership at 3% interest. However, if interest losses due to below-
market rates are counted, then another $268 per unit per year must be added (if
the market rate is considered to be 6%), This increases the per unit per year cost
of the home-ownership program to about 29% above that for the rent supplement
program, excluding administrative costs from both.
VI, Recommended Additional Research
hs
Some of the concepts and quantified estimates set forth above have been based
upon admittedly inadequate or unreliable data. Therefore, we recommend that
additional research be undertaken before the programs described herein are given
final approval in concept or designed in detail.
Consequenily, reliable information about the following should be obtained:
a. Accurate estimates of total operating costs for multi-family housing to be
developed under any ownership program. The operating cost estimates and
contingency allowances used in the above calculations were supplied by
FHA. However, we believe they may be low, because operating costs
normally run 60% of total gross revenue, and not all funds available for
debi service are actually applied to debt service.
=| P=
The required attributes of home owners in s!ums. Probably they revolve around
steady employment, the availability of multiple family members some of whom
are home and can keep track of the property, reasonably good character record,
etc.
The specific urban areas classified as slum areas for purposes of these programs,
and certain data about them.
(1) | Number of dwelling uniis by type of structure; small multi-family, large
multi-family, and single family.
(2) | Number of households living therein and their major income, ethnic,
and family size characterisfics.
(3) Condition of structures.
The number of persons or households in these areas who have the required
characteristics for ownership, absolutely and as a percentage of the fotal.
Ways in which ownership programs can be tied into over-all strategies con-
ceming low-income housing and the amelioration of ghettos so that they do
not merely perpetuate slums by "locking in" the new owners of old buildings.
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Title
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Box 22, Folder 17, Document 25
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/6feb088e02ad6d1367a5f9a2fd75fff2.pdf
9faa6096248f65733e54ad03e7ec87f7
Scripto
Transcription
A written representation of a document.
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NEIGHBORHOOD Cf! :-:T?R PI LOT PRCGR/IJ-1
I.
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Introduction
A.
Purpose of the pilot
J?TOGr<".:-:r
On Friday, August 19, the Pr ~sident in his Syracuse, New York,
I
speech asked. • • "the Secretary c f I{ou3inc; and Urban Development to
set a.s his goal the est~blishmer: t --· in every ehetto .in A."llerica .-- ·
I
of· a neighborhood center to service the people who· live there."
!
.I
Acco:..~din~ly initial_ steps tc ;.ro r o. fulfilling this · goal were
t
l
I
taken when, under Executive OrdE t·. 11297, t he Department of: Housing ·
~
a~ Urban Development convened a meetin3 on A~gust
/
· /
30,; 1966; of
1 Federal agencies to develop a rE DO~t to the President and initiate
.
/
a · program of, action to meet the Pres ident's r equest.
·1
As a re sult of a serie s of :i n'cer-agency meetings a ·plan for ·
,/
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,:
.
a program ·o f pilot projects, wh::i ch would become the first-step
toward the President I s goal, haro bee_n developed.
This program ·
will be desi gned and carried out a long t he -f ollowing lines. ·
1
I
1.
•X- ·X- ·X· K· ·X· -'i<·
ll. ·Purnoses of a Ne ighbor hood Cent o·
A neighborhood center shoulo facilitate the deliverance of
'
services to people in low-inconc nei ghborhoods and .provide a broad
range of health, recreation, soc ial and employment service s .
More social, .health, employnent, recreation, and education
services are nee<l,ed in the pover.t y c).rc~$; t.he se services need to
l·
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i
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I
�·2
be· decentraliied to such areas to be moGt effectively used; and
·[
these se::c.-vices- should be provic c ,'i to t he r,rectest extent possible
in the context of One-Ston or T· ei. -1-,bo;:-1,oocl Center. ·. Such a center
0
would :provide adequate deliver:i o'f: these services inn co~erent,
coordinated
manner, reach tne tni nformecl, the isolated and alienated'
I
'
and :provide a .forum where the reeds of the neighborhood can 'be
· e:>.1)ressed.
I
III.· Criteria for a Neir,hborhood Ccrtcr
¥.any variations are possfoJc in the design of neighbor~ood centerG;
and local conditions, resou=c0::., 1:ced.s , choices, and p;>:-og_ra.r.is will
determine specific solutions.
To be considered a neighborhood center
ror this pilot program, however ~ the facility must provide at a minimum
a :progrEUn for the following ser vices : .
1.
Inf'ormation on citizenr' ri5hts and on how and where to get
services and assistancE.
2.
Diagnosis of problems e nd referral to service agencies. ·
3. Follow-up or outreach
f 0 1· continued counseling .and services.
4. Co-ordination among aeEncies (Federal, State, local-public
a nd private) supplying cervi ce s to t he neighborhood:.
5. Involvement by t he ne i f hborhood resident s.
Whei;iever feasible the progrc1m for t hese ·r.iinirr.um · services should be
· expanded t o :t,nclude other t ype:: of services and acti vities, depend.i ng
on the needs of the particular ser·vice area.
1\lnong them are:
1.
Social services .
2.
A broad range of active end passive recr ~ational facilities .
�------
i
3.
I.
I
Employment informat i on. r c:E'm.·i·al , counceling and training
facili tics.
I
/
4.
I
I
Houcing ascistance.
I
5. Acti vi tiec ·directed t o
I
6.
Health services includ:.ri~ cxcmi nution and consultive services.
7.
Cultural enrich.-nent.
-8.
tl:c need.::; of tenior · ci tizer.s.
Non-curricular and remc·dfa1 education.
9. Decentralization of
r:m.1ty Ci ty Hall service functions to the
neighborhood.
The :fll'o/Sical size of t he nc·i c;hi)orhood center will depend oh the.
scope of the cervi ce progr am
i-,. j_:,
t o h ou ::;e.
I
In addition to the con- ·
cept of the neighborhood centeJ· ~s a s incle building, consideration
raa.y be Given, wher e the neig:ioc,:;.·:1ood i s small in area but dense· i n
po:pulation, to the concept of r. ,st r uctu::-e havin~ many services supported by other· off ices or str.".ctu:..·e s p1·oviding su:p:porting services.
'
I .
I V.
I.
I
I
A l':e ir.:hbm.· hood Center Exanrole
Although a cent er wi l l have mo.ny ccml)onents, such a facility :crc1.st ·
be organized a nd administrated · in a coherent f ashion... This would r e -
I
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Reception , referral, cb c:i.:snos i s , :follow -up , .outr~ach, and
related gener.a li zed se1 vices be performed through a com:non
reception and adminir.tlcJtion system.
2.
All or most of the comrunity's nocial s ervice agencies providing services of nee<' to the neighborhood . should be located
in one building or witl-·in waL'l<ing distance of each other.
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· 3.
If smaller infonnation, u.::.ci. rc,fc-r;_·o.l or servi·c e center::;
are located in the r.ei,;l1L1orhcoc1 ) they snould
be
related
II
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to the larger one-stop :-;crvicc cer-.'ccr.
~•
I
A center would be design.eel i1; a flexible manner so that · the Sl)ace
·can be utilized to the optimum· &nd sriace areas would be· ·d esigned to
serve multi-functions. · The s:9acc ·.mule. i :'1.clude meeting areas, office$ .
i
I
for counseling services, speci: llizecl service areas, and recreatior..al ·
facilities.
J..
A neighborhood cc:1-'.:.· cr micht contain:
A CAA :progra.'il componen-; i·ihich would f ocus on the organization
and participation o-1' t i tc 1·csic.ents of the neighborhood. · It
\.
would be responsible f,n· ic1suri:nc that th~ other components
of the Center work to · Ji.e i:lencfit and satisfaction of the ·
neighborhood.
Loca l Cl.J?s mi z,.~t a l s o provide services such
. as l egal a id.
2~
Recreation ·services ancl fac ilities .
This might include a
small outdoor recreati,m a1·ea~ •,,ith a swinnning pool when
war-..canted , and a multi-·:9ur:pose gymnasium which could also
be used for large gath1 ir ings) . including theatrical proa.u·c ~ions.
3.
A preventative progra:.~ of healtn services which ·might i nclude
a prenatal clinic, a wc:11:-baby clinic, a mental hygienic
clinic and an ambul ato:·y health services clinic.
4. · An educational and cul~;ural com:9onent which would include
a pre-school program o:' the HeadGtart variety, adult literacy,
_special adult classes
.
.
and drama ~ro&rams.
LS
well
as
special library, music, art
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I
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5
5 • . Employment services wot: J.c: t e an inte.zral po.rt of the Center.
Information 'would be p:r0vi,;ec:
0:1
the job opportuniticz;
testine; services and b ·.1:,.-::.ccl jo1) t:::.·o.ining services should be
available.
In additior, :::;peci:3.l jo·o oriented procra:-:is such
as the Job Corps, t he I• 2ic;i'.l:orl1ooci Yoath CorJ.)s, and the Work
and Training Proeram fer 91.1.blic assistance clients might
also-- be coordinated t~::m::;h this part of -the Center.
r
6. Assistance wi -r.11 respect to hou::;j_n:; and rc:.location should be
provided in tne Center.
Ict'orn:e.tion should be available on
relevant local housinc r r ograms, and assistance,sha~ld be
o:':fered to clients on :: ow to :i:,,prove their homes, how to
'
secw.·e ·adeQuate :financi ni, and the availability .of public
housing and integrated l1 ousing.
7.
Family services and hchz manac0men~ is another importan~
component.
Pulllic welf s.rc case wor l~crs might operate
from the Center and pre ·,iicle advice and counseling to the
neighborho~.
Family e ricl marital counseling might be ·
offered as well as cons ~~er education, money management,
and homemaker services.
I ./
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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: HUD/10/25/66°
NEIGHBORHOON CENTNR PILOT PROGRAM
Introduction at
A. Purpose of the pilot progran n he ot
On Friday, August 19, the Prosident in his Byraeuse » New York, “
speech asked... "the Secretary cf Housing and Urban Development to
set as his goal the establishmert -- in every ghetto in America <=: °
. of a neighborhood center to service the people who live there."
Accordingly initial steps tcward fulfilling this goal were
‘taken when, under Executive Order 11297, the Department of Housing
and Urban Development convened ¢ meeting on August 30,: 1966; of
, Federal agencies to develop a report to the President and initiate °
& program of action to meet the President's request.
As a result of a series of inter-agency meetings a*plan for
a& program of pilot projects » which would become the first. step
toward the President's goal, has been developed. This program:
will be designed and carried out along the following lines.
xX RH HK
Purposes of a Neighborhood Center 2 ot
A neighborhood center shoulé facilitate the deliverance of
services to people in low-income neighborhoods and provide a broad
range of health, recreation, social and employment services.
More social , health, employzent, recreation, and education
services are needed in the poverty orcas; these services need to
ia ead ai E dak bad z :
a = : Ba. eal ee ee eee ae be te. Fa we emaretiatents ninene he e
= See —=j, ae san a ee eer
a
2
‘ 2 ,
be Gecentralized to such areas to be most effectively used; and
these services- should be provi¢ed to the greatest extent possible
in the context of One-Stop or Tcivhborhood Center. -Such ea, center
would peeytas adequate deliver; of these services in a coherent,
coordinated manner, reach the uninformed, the isolated end alienated
' and provide a forum where the recds of the neighborhood can be
‘expressed.
III. ‘Criteria for a Neishborhood Certer
Many variations are possivie in the design of neighborhood centers;
and local conditions, resources, needs, choices, and prograris will
determine specific solutions. To be considered a neighborhood center
for this pilot program, however , the facility must provide ata minimum
& progran for the following services:
i. Information on citizens' rights and on hoe and where to get
services and assistance.
2. Diagnosis of problems end referral to seein agencies.
3. Follow-up or outreach for contimed counseling and services
4. Co-ordination among agencies (Federal, state, Localwpublie
and private) supplying services to the neighborhood.
5. Involvement by the neighborhood residents. |
Whenever feasible the program for these minimum services should be
expanded to include ovher types of services and activities, depending
» on the needs of the particular service erea. Among them are: —
1 Social services. : |
2. A broad range of active and passive recreational facilities,
| ey ae
a-ha , . - >.
iv.
SSS
Shey cn al Te i tp tenn ny ein nl Byam See a
IY e : ana es = i ere en
w
3. Employment information, referral, counseling and training
facilities.
he Housing assistance.
Bh Activities directed to the needs of senior oleaeeties
6. Health services includ:.ne exemination and consultive services.
Te tural enrichment. | .
8. Non-curricular and rem-dial. education.
9. Decentralization of many City Hall service functions to the
neighborhood. |
The physical size of the neighborhood center will depend oh the
Scope of the service program ii. is to house. In addition to the con="
cept of the nisi ghbacnooe cente:' 2s a single building, consideration
may be given, where the neighborhood is small in area but dense in
pooulation, to the concept of ¢. structure having many services sup- :
ported by other offices or sim .ctures providing supporting services.
A Neighborhood Center Example ; ‘ ee
Although a center will have many components, such a facility must -
be organized and administrated in a coherent fashion... This would re-
quire that:
| 1. Reception, referral, diagnosis, Zollow-up, outreach, and . | ;
related generalized seivices be performed through a comuon
reception and administiation system.
2. All or most of the comunity's social servis agencies pro-
viding services of nee¢é to the neighborhood, should be aeeated’
in one building or witrin walking distance of each other.
atone ee et gr ne te = = = ——— a = B= ee ee
- alae i. [ i
|
1
|
|
\
3. If smaller information, and referral or service centers
are located in the neishborhced, they should be related
ade
to the larger one-stop service center. ;
| Se 5 A center would be designed in a flexible manner so that ‘the spece .
can be utilized to the optimum: and space areas would be designed to
serve enritaetuneeione, The spice vould include meeting areas, offices |
for counseling services, specinlized service areas, and recreational -
facilities. A neighborhood ce:ter might contain: 3
1. A CAA vrogram componen: sihich would. foeus. on ‘the organization
t Aa: and participation of she resicents of the Hed ambarhooas Lt
ould be responsible for insuring that the other componerits sy
mtd ik of the Center work to “che benefit and satisfaction or the -
neighborhood. Local C:irs might also provide services such
as legal aid.
2. Recreation services aml facilities. This might inp @
small outdoor recreation area , with a swimming pool when
warranted, and a milti-ourpose gymnasium.which could also
‘be asad. for large gatherings, including theatrical productions.
3. A preventative program of health services which might include .
a prenatal clinic, a wall-baby clinic » & mental hygienic
clinic and an ambulato:y health services clinic.
4, An educational and cultural component which would include
a re<2choah program o:' the Headstart variety, adult literacy, |
‘6
special adult classes is well as special library, music, art
and drama programs.
5. Employment services would te an integral part of the Center.
Information would be provided on the job opportunitics;
testing services and linived job training services should be
available. In additior, snecial job oriented programs such -
as vhe Job Corps, the Foichborhood Youth Corps, and the Work
and Training Program fcr nublic assistance clients might .
also: be coordinated throuch this part 6f the Center.
6. Assistance with respect to housing and relocation saould be
provided in the Center. Informetion should be Eyaliatie on
relevant local housing progrems, and assistance: should be
ha
offered to clients on ow to improve their homes, how to
secure adequate financing, end the availability of public
housing and integrated housing.
7. Family services and hore management is another important
component. Public welfzre case workers might operate ©
from the Center and Srcvide advice and counseling to the
neighborhood. Family end maritel counseling might be-
offered as well as consumer education, money MeneheNentS
and homemaker services.
AT Pe MAM. ty
SE re e
Dublin Core
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Title
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Box 22, Folder 17, Document 26
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/4e7ceff5fa27220ac4de96354a0b9048.pdf
4bf4862e31667d30ce4bd9276b5ef157
Scripto
Transcription
A written representation of a document.
.
j/
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.PLANrrnrG FOR NEIGHBORHOOD PROGRA1,S
.
Introductioh
I
I
i•
· A neighborhood program will or~narily be one part of a larger city'W'i.de comir.unity action program.
Thus questions must be asked about the
city at large and the whole cor::munity action planning, along with
an
inquiry into the ·neighborhood. program itself'.
Funds are likely to be limited so that in I:10st cases a choice of some
neighborhoods must be made, either to start the city's program or to be
' . _.. -~
'
used as a. "demonstration."
At the outset, reasons for preferring certain neighbqrhoods over others
(
should be explored.
In soce cities past social .dis"Gurbances or chronic
,
trouble may dictate the choice of a neighborhood for concerted social
i
) ·
effort.
There is a caveat:
A city may prefer to choose neighborhoods
with problems that can be dealt ·with rather quickly be.c ause succes~
.
.. will
be more certain and visible.
Unfavo1·abh coinJ?arisons should not be made
once programs a.re initiated between the more easily solved neighborhood. ·
problems and the knottier ones.
i·
The preference of one kind of neighbor-
hood. over another may result from wise and responsible political. decision,
.,
but the basis for decisions should be understood both by the coc::ru.nity and
by the federal agencies.
In the attached outline we have asked a series of questions designed
·· to otter some go.tides for those evaluating neighborhood progrf!J=!S.
Because
these programs are so frankly ex:perimental, no such outline can provide
.\
I
more than a. general approach.
More reliable criteria will emerge from.
concrete experience with actual programs, their inevitable failures and
.
.
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A detailed knowledge of the city, the sponsors, and the over-all
political context will be necessary for judg::ie_!lt. ~ each case.
Still.,
it may be a useful exercise to try to articulate in advance so:::ie of the
factors that shouJ.cl enter into evaluation, even though judgments a.re
likely to be intuitive.
The discussion that follows is divided into two parts:
(1) criteria
for defining the appropriate neighborhood; and (2) criteria for judging
the substance of programs for a neighborhood.
It is not inappropriate to point out that some decisions to accept or
reject a proposal for neighborhood programs must be piaa.e on a primarily
political basis.
The Federal. progra!:l needs Congressional support and it
needs the support of all the t r aditional agencies in the Executive branch
/
with which it must cooperate .
I
of any city is
F1trther, the over-all political situat i on
an essential i ngredient
in the success or failure of a
community action program and of the neighborhood program which is its
natural offspri ng .
This point is probably understood, if not articulated,
by applicant s and evaluators alike .
The f orms t o be filled out for the
'.
~~pt~ - of _~ou·s·~
- &:_Ur b~ :_DevelolJ.~!1t · 'jr.ay__··
·· set up standards and expectations., but t hey are not like aptitude t ests .
A high score does not imply autooat ic admission to "school. " As long as
funds a.re insufficient t o j;lermit ·:every soU!ld progral:1 t o 'be accepted., it
should be understood that choices involve a variety of factors, not the
least of which .is political.
There is another risk.
.
.
·--·---·--.....
The existence of complicated .forms., the pro-
mulgation of standards. and the coi::J::lOn knowledge
that.. choices
.
.
.. . have to be
/
/·•
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�made, may lead cities to imitate slavishly the type of progr8.l:l.S that have
been accepted before.
This could lead to rigidity -- ·a calcification
which is the enemy o'f innovation and imaginative use of these special local
characteristics of a city and neighborhood.
Neighborhood
/
I
,
The limted experience thus far with community action programs and
the longer history of settlement houses ,have led those :working with problems of organization to insist upon a small local ·area as the lowest
common denominator for any new social programs.
The word
. ;'neighborhood"
.
.
is used to mea:i a relatively compact geographical area and also an area
which has some sort of functional cohesiveness.
Before the concept of
neighborhood progra:n becomes a . cliche' easily glossed over, it '!Lay be
important to ask sorae questions about what may or may not be ·defined· as
"neighborhood" and for what purposes.
Reaching out:
It is fairly well accepted now that any progra.o of social action tnl.St
be broken down into local units so that it can reach out to those people
who are unwilling or unable to go very far for service, either because
of fear, inexperience or lack of basic skills to make use of available
services, on their own.
Thus the very first criterion of any_ neighbor-
hood program. is that it be sufficiently local to achieve this end.
Elasticity:
The kind of services ottered, a.ncI ·the characteristics of the people·
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served will affect tQe definition of "neighborhood." For example, a
i.
mother with a sma.ll child has a far greater physical-geographical limitation_than does an adolescent who is used to wandering the city with a
gang.
Could you serve them both in a neighbor center?
The unit for phys-
.
ica1 hea1th care might be quite different from the unit for mental health
care, in part because of the degree of education needed before the patient
wants the services offered.
A co~text of multiple services, or even ser-
vices to a wide age range, indicates both elasticity of the concept of
neighborhood and the arbitrariness of any definition.
one center
may
The very fact -that
offer a multiplicity of services will ~lso affect the
delineation of "neighborhood."
Even a single person may define his neigh-
borhood
very differently for different
purposes -- church, school,
or
.
.
.
socializing, for example.
The si"t~ation becomes infinitely mo.re compli-
cated when the "target population" encompasses
many
groups.
A neighborhood may exist because of pr eexisting -services or grouping
of services, for example, an eff ectively functioning settlement house wi-t h
a long tradition, as in t he Nort h End, Boston, or a clinic.
The Peckham
Health Cent er in England created a very cohesive neighborhood for
purposes .
many
A preex~.s.t i ng sense of community of'ten grows up because of
ethnic s imilariti es or racial is olat i on.
The sense of coIIII:lunity, however, may be a decept ive f actor on which to
rely.
An effective :preexisting service may provide a ·coI11I:1unity on which
.
broader services can be
built and should be built.
.
On
the other hand.,
. the invisible walls which create a ghetto like Harlem., create a "coI:1?:1unity;
1---,- -· ._ _ _ but.one frayed .w.;.th strife and hostility _.which may_have .to 1;,e broken down
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into very small units to penetrate resistance that the larger cor::::rrunity
reini'orces.
In other words, a neighborhood has tp be a manageable unit. -
If there had been trouble, hostility, delinquency ~r a high crime rate,
the negative aspect of a community
may
argue for the arbitrary creation_
of very s~.all neighborhood units for certain kinds of services, in order
that the :population ca.~ rea~ be reached and involved.
Use of Personnel Affects Delineation of a Neighborhood
The availability and training of the personnel to staff a neighborhood program will affect the parru:ieters of a neighborhood unit.
11,ore
is meant here than the ratio of professionals to "cl.:i;ent·. ". It goes ·without saying tha.t one doctor in a clinic will serve a far-smaller population
than ten.
But personnel can be iI!l_portant in a qualitative sense,
.
as well •
I
·The supporting worker can serve a.s· connective tissue ar.ong professional
- -I'
services.
This is the worker who knows the language of the neighborhood
and who is able to direct the people in it to needed services, provide
follow-up, and help the person coordinate the various services that may
be asser.ibled to neet his particular needs, whether welfare, medical,
educational, or employment, or a combination of any or all of these, in
any problem or crisis.
Such personnel make ·up a psychological transpor-
tation and concunication syst~~
An
A store-front room may serve a block.
exacyle
may
nake this more concrete: .
In it may be neighborhood workers
or urban agents who can take in.forr:iation from those on the block and steer
them to adult education, eJ::ll)loyment training, work crews, mental health
'
clinic, the hospital, a local lawyer, the ·hou.siog authority, etc.
~-~-- - ---~~--- of' -these services·. need -not be represented
All
ill -the st<;>re-tront room, but -
�they must be ~ade accessible by effective workers who can coI:II:1unicate
with the people ·the program is designed to serve.
The urban agent be-
!.
coi::.es a path:f~nder for the individual in need, to all the agencies and
services required.
Thus the concept of "neighborhood" is in part defined
by the kind of staff' available, because those who help people find their -;
/
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way through a labyrinth of services ma.1-.e the programs really accessible;
I·
Actual transportation is of great importance, since the inability to
find one's way is so characteristic of the -·poor.
Their neighborhood, for
purposes, is walking radius. · Here again workers can help make exis-
many
ting transportation usable and therby make far-flung prog;rams accessible
to a neighborhood.
We have stated earlier that one varient of the definition of neighborhood is the kind of service th~at is offered.
We are assuming that one
goa.l i s comprehens·iveness - the offering of a group of interreJA,ted human
j.
services that will raise the aspirations and the opportunities of the
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people to be served.
It is understood, then, that different services
will serve different geographical areas.
As
pointed out, the lowest
common denominator may have to be the workers who can link physically ·
separated services.
But this is only one alternative.
creation of
a new instit ution designed
defines the neighbor hood.
There are others.
For example, the
t o have such great impact t hat it
Consider the Comi:iu.nity School as it exists i n
New Haven, Connecticut, and Flint, Michigan.
They draw upon the neighbor-
hood. of the families whose children attend t he school.
In new Haven,
Conte School is made as attractive 'f.l,th a center to~ s~nior citizens,
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an auditoriun, bocci courts, a park for young mothers, and so on - that
a sense . of community is created by the very fact of the institution.
other neighborhood se=:vices, legal, public health, wel:fare, etc., are then
brought in to this "neighborhood."
the neighborhood by their creation.
Other kinds of institutions may define
Probabzy this is what the multi-
In such cases
service center in Boston (Roxbu...-J) is attempting to do.
the neighborhood is geographically larger than that served by the block
store-front with the "pathfinder" personnel.
With a large center, staff
may literally walk the streets to ·bring the people to the services con- ·
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centrated in one building. - There is no a priori reason t~ prefer one
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structure of a neighborhood program over the other.
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So many neighborhoods are natural neighborhoods, defined by geography;
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tradition, or other boundaries that they can be seen quite readily. In
... 'the end, high deference should be given .to the local definition , of a
neighborhood.
However, the Office of Economic Opportunity can and should
insist that the city consider the many variables, including history and
I .
tradition, which go into the delineation of a neighborhood unit.
It
should ask for careful consideration of demographic data, for detail
about the ethnic background of the people in the neighborhood, the economic and educational level, employment opportunities, housing, recreation
and social outlets.
A well-thought out proposal is likely to be rich in
this kind of.detail.
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8
THE PROGRAM
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The substance of the program is no less i.J!;portant than the delination
of the neighborhood, and must be adapted to this delineation.
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The first overall re~uirement for a.cy program is the involve:ir.ent of
the people to be served in the planning and then the operation of the
programs designed to serve theo.
l.
It is not easy to involve the inarticulate poor, for whom organization
is not a familiar phenomenon, but it is possible and it is essential.
One
· clear goal must be to reduce dependency in all areas, ·not to increase it.
.
This means that arry "tender plant" of a neighborhood, organization :ir.ust
I·
be built upon -- a.cy indigenous leadership that is at all constructive
must be involved in the planning process.
\
A
list of needs outlined in the program planning stage, health,
education, jobs, etc. should indicate how these needs are felt by the
pop~ation.
It is difficult to establish criteria from Washington to
assure this, but there must be some warning signal of local indifference
to neighborhood participation in a program.
Furtherz:iore, it is so i~-
portant that if there is arry doubt, a field tr~p might be worthwhile.
We can anticipate antipathy and resistance to the organization and voice
of the poor • . But these are risks that must be.accepted as natural and
inevitable and perhaps even welcomed as evidence of involvement.
Survey of Existing Services
A pr oposal should include a survey of existing socia.J. services and
education., including, if possible, cost statistics and th~ ratio of
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professional and supportive personnel to the neighborhood population.
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would be useful to learn how accessible existing services are which reach
the segnents of the nei ghborhood population.
build on ;preexisting services , and i f not,
Is the new plan going to
why
not"
Often there are good
reasons, but as often, a natural center for people, for exSJ:lple, a priest
whose church has become a focus for inf'o:rmal social services, may be
ignored and a new artif icial center created.
Relations wi.th Existing Agencies
In some cases there r:iay be value in by-passing existing social service
agencies.
In ·other cases this may be politically unwise pr unwise because
of the strength of an agency.
In th,e case of a strop.g well-supported
agency, it is entirely possible that a neighborhood program should devel-
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op from one di scipline or area of Iservice.
For example, if the Board of
Education were strong and innovative, t he idea of a COI:llllunity 5-C:~Oo_l
might be the basis for t he nei ghborhood program and education . would then
be t he nucleus .
I f there were already a co:mnunity mental health cent er
with local support, mental healt h could' be the nucleus of the community
action pr ograo.
Thus, in the Bronx, New York, a community action pro-
gram is emerging from a mental health center out of t he Albert Eins t ein
Medical School (Dr. Harris Peck) .
In other citi es, t he _Youth Employment,
or Opportunity Center has already become a familiar and accepted part of
neighborhood and so a comprehensive program erierges with the el:!ployment
or
job training at its core.
The judgment probably should be i:::ade "on
the grou.:id."
Although comprehensiveness of services riay be the ·goal, it is entirely
. --·- ~-· ~--...possible·•"'t hat . ·a s ..a""beg:foni'ng 's 't ra tezy ··ror ·.i,oli ti~al; ..financial,· -or even
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social reasons, a si::lpler or even segi:1entalized progrru;i shotld be created.
In other words, a city might want to start _with health~ education only,
and slowly add employoent and perhaps much ,later deal with teenage recreation.
Or, there r;,ay be an assault on the problem of teenage delinq~eccy
which re~uired an across-the-board approach directed to that age group
only, leaving fai:dlies and senior citizens for later.
It is possible to
choose to work only with the families of very young children or those
children themselves, on the theory that the very young a.re the most salvageable part of the population.
The reasons behind any of these or ether choices :oay have validit-J, in
teros of short e.n~ I:ledill!:l range strategy, but they ,I:lust not become the
excw.; e for abandoning the objective of a coqirehensive progra..~.
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The planned use of staff, including provision for training _should be
examined carefu.1.ly.
To ~hat extent does a neighborhood prograo
search out indigenous workers, to what extent rely on outsiders?
have connecting links to outside services been planned?
plan
to
How
A:re they suffi-
cient to ma.~e all of the services truly accessible to the population of
the neighborhood?
Some provision should be made for working out a relationship of cooperation and connection among the traditional agencies and institutions
which will either work with, control in part, or i.c:pede a neighborhood
program.
Friction may be inevitable, but its destructive aspect should
be m nimized at the planning stage.
A ;,very current exBJ:Iple of this is the
creation of neighborhood legal services in liew Haven and in Washington,
- - - - · -=--···r- n ~c:--±n- frew Haven, at present, ~liere·-1s ·serious opp~sit .i on °fr9m the
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organized bar which has slowed down the program seriously.
In Washington, .
the Bar Association and Legal Aid were involved at each step of pla.'llli~
and
have thus far given strong support.
Including the traditional serrice
agencies in the planning process as much as possible and drawing upon their
skill a:id experience may substitute cooperation f?r friction.
The interrelationship of citywide or even state agencies is a question
more directly related to the evaluation of· an entire community action program then for judging the specifics of the neighborhood proposal.
Al.so a larger matter is the area of the whole question of information
gathering and disse:crinating devices, com.~unication, data .and 9ollection,
both formal and informa.J..
There are more ways of assuring effective com-
munication than can be listed .here.
Citywide newspaper coverage, radio,
TV, are the ones first considered.1.- The functional illiteracy of many of
the people who z:iost need to be reached means that person-to-:,perl:i_? n '.comI
munication, and contact th.rough the places most frequented, whether bar or
church, is the basis for an effect ive cor.:i:nunica.tions network that ought
to be in every neighborhood picture.
~er a Prog:ram has been Accepted.
The styl e of initiat i on of a pr ogram is ·something that should be r egarded with gr eat interes t .
In s ome sit uations a quiet launching might
be preferable t o one with fanfare.
Crisis exploitation, cris i s creation, .
and timing must all be con:sidered.
We would want to know early what obstacles are anticipated and which
obstacles are in fact faced.
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·Il.1.itaracy, 1:8,ck of social cohesiveness,
and ·
a.pa.thy r:,ay be· prevalent __a.lmost ev.e ry place that a program is co?J,templa.ted.
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ifaat are the plans to deal with them?
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How are some of . these obstacles
considered in the attempt to involve the neighborhood in Dlanning its own
progra:n?
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It is hard to anticipate whether a program will become rigid or calcified.
We have already indicated the possibility that a~pllcation forms,
or rumors of hard choices a:nong cities, may cause a proposing co~unity
to take a "safe route."
If it is made clear from the outset that all of
I/
these programs are frankly experimental and that innovation is desired and
that _constant feedback and evaluation, as well as program initiative at
lower levels, are desirable, rigidity nay be avoided in ~ny places.
I .
There should be mechanisms for anticipating cris~s or resistance that
may
,1-
come from the mobilization of a neighborhood. •Progra.o effectiveness
o:ften means the assertion or creat~on of a p@litical force which will be
' .
fought.
There are ways to lay the ground for significant changes, __al-
though resistance or even outcry may be inevitable.
The situation of the
rent strikes in Mobilization for Youth and the political repercussions,
raise the question of what kind of preparation might be most effective.
Evaluation
Plans for evaluating a neighborhood proposal must be built into the
proposal from the beginning.
This is a subject for another document.
The whole area of comounity action is too new for us to be aware in ad-
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vance of the
many
causes of lags in progress or even failure.
Feedback
mu.st be rapid and constant.
We would want to know who is evaluating the neighborhood program and
--· . against what criteria • . Is it part of a larger evaluation scheme of a
,
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.citywide community action progrru:i?
and
Are there any plans to test theories
conclusions against other neighborhood programs in the same and other
cities?
Long-range goals shouJ.d be broken down into sequenti_al. steps.
tnl.St have a planning period beyond the first allocation of funds.
Ea.ch
But
detailed plans should be worked out at shorter intervals _than overall plans
and
broken down in such a way that parts of a program. can be looked at
separately i'rOI:J. other parts of the overall structux~. We would 'Wa!lt to
know how often., what kind, and to whom reports are made; how much personal
contact is there by the evaluators; how are they trea~ed at progra:;i headquarters., - ignored., exploited or self-supported? Are periodic reviews
carried out?
'I
Are the goals st.u.""'ficiently formulated in the beginning so that we couJ.d
ask later on whether the plans were fulfilled?
r
--
Whether they were · SJ:1ended?
How recent and bow severe and how i're~uent were the amendments? We would
want to know whether the evaluation is set up in such a way that side
effects could be anticipated or observed, if they occurred.
We would be loath to set up any machanical criteria for judging the
effectiveness of a comprehensive neighborhood program.
course., each with some limited value.
There are so~e, of
For example, the concept of in-
creasing life-long earning power, or, a reduction in _unem:plo~ent, the
increase of staying power (retention) of yo\.lllg people in high school drop-
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outs., in illegitimate births., lowering crime r ate., family break-up, hospital admission., and so on.
__ ...... ~-- · mu.st be enployed.,
.,
Probably all of these statistical measures
but each· should be.looked at quantitatively to see
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whether, in fact, it tests the social condition we think it does.
-·
ample, an increase .. in employment
For ex-
is a good thing; but if. the -N~gr-oes
continue to hold only t'lenial, lower paid jobs, the -eI.1ployment program is
no success.
If our goal is the tullest development of the resources and capacities
of each h\.2::lan being, then we will not be satisfied with· any simple statistical measures.
These will be only our mechanical sta.rting .:points.
The
aspirations of any neighborhood program should escalate with success •
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PLANNING FOR NEIGHBORHOCD PROGRAMS
Introduction -
A feichborhood program will ordinarily be one part of a larger eiiys
wide community action program. Thus questions must be asked about the
city at large and the whole community action planning, along with an
inquiry into the neighborhood program itself,
Funds are likely to be limited so that in most cases a choice of some
neighborhoods must be made, either to start the city's program or to be
used as a “demonstration.” 7
At the outset, reasons for preferring certain neighborhoods over others
should be explored. In some cities past social disturbences or chronic
trouble may dictate the choice of a neighborhood for concerted soetan
effort. There is a caveat: A ape may prefer to choose neighborhceds
with problems that can be dealt with rather quickly tecause success will
be more certain and visible. Unfavorable comparisons should not be made
once programs are initiatea between the more easily solved neighborhood:
problems and the knottier ones. The preference of one kind of neighbor-
hood over another may result from wise and responsible political decision,
but the basis for decisions should be indeveeoed both by the community and
by the federal agencies. | oe A te
In the attached outline we have asked a series of questions designed
‘to offer some guides for those evaluating neighborhood programs. Because
these programs are so frankly experimental, no such outline can provide
more than a general approach. More reliable criteria will emerge from
concrete experience with actual programs, their inevitable failures and
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A detailed knowledge of the city, the sponsors, and the over-all
political context will be necessary for judguént in each case. Still,
it may be a useful exercise to try to articulate in advance some of the .
factors that should enter into evaluation, even though judgments are
likely to be intuitive.
The discussion that follows is aividea into two parts: (1) criteria
for defining the appropriate neighborhood; and (2) criteria for judging
the substance of programs for a neighborhood,
It is not inappropriate to point out that some decisions to accept or
reject a proposal for neighborhood programs must be made on & primarily
political basis. The Federal program needs Congressional support and it
needs the support of all the traditional agencies in the Executive bvench
with which it must cooperate, Further, the over-all political situation
of any city is an essential ingredient in the success or failure of a
community action proErai and of the neighborhood program which is its
natural offspring. This point is probably understood, if not articulated,
by applicants and evaluators alike.
The forms to be filled out for the Dept. of Housing &/ Urban Development may ~
set up standards and expectations, but they are not like aptitude tests.
A high score does not imply automatic admission to "school." As long as
_ funds are insufficient to permit every sound program to be accepted, it
should be understood that choices involve a variety of factors, not the
least of which is political.
There is another risk. The existence of complicated forms, the pro-
ry: mulgation of standards and the common knowledge that choices have to be
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made, may lead cities to imitate slavishly the type of programs that have
been accepted before. This could lead to rigidity -- a calcification
which is the enemy of innovation and imaginative use of these special local
characteristics of a city and neighborhood,
Neighborhood
The limited experience thus far with community action nog and
the longer history of settlement houses have led those working with ores
blems of organization to insist upon 2 small local area as the lowest
Dinolt denominator for any new weet programs, The word "neighborhood"
is used to mean a relatively compact geographical area and also an area
which has some sort of functional cohesiveness. Before the concept of
neighborhood program becomes a cliche’ easily glossed over, it may be
important to ask some questions about what may or may not be defined as
"neighborhood" and for what purposes.
Reaching out:
It is fairly well accepted now that any program of social action must
. be broken down into local units so that it can reach out to those people
sone tee ee ee
"who are unwilling or unable to go very far for service, either because
of fear, inexperience or lack of basic skills to make use of available
services, on their own. Thus the very first criterion of any neighbor-
hood program is that it be sufficiently local to achieve this end.
Elasticity:
The kind of services offered, and the characteristics of the people
soe me rahe ements cece tle bie eee Fe awe ie
served will affect the definition of "aeighborhood."” For example, a
mother with a small child has a far greater physical-geographical limi-
tation than does an adolescent who is used to wandering the city with a
gang. Could you serve them both in a neighbor center? The unit for phys=
ical health care might be quite different from the unit for mental health
care, in part because of the degree of education needed before the patient
wants the services offered. A context of multiple services, or even ser-
vices to a wide age range, indicates both elasticity of the concept of
neighborhood and the arbitrariness of any definition. The very fact that
one center may offer a multiplicity of services will also affect the
delineation of "neighborhood." Even a single person ay define his neigh-
_ borhood very differently for different purposes me church, school, or
socializing, for example. The situation becomes infinitely more compli-
A neighborhood may exist because of preexisting services or grouping
of services, for example, an effectively functioning settlement house with
_@ long tradition, as in the North End, Boston, or a clinic, The Peckham
Health Center in Imgland created a very cohesive neighborhood for many
purposes. A preexisting sense of community often grows up because of
\ ethnic similarities or racial isolation.
The sense of community, however, may be a deceptive factor on which to
rely. An effective preexisting service may provide a community on which
' broader services can be built and should be built. On the other hand,
. the invisible walls which create a ghetto like Harlem, create a “community
say ey, o.. DUG one frayed with strife and hostility which may have to be broken down
”
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5
into very small units to penetrate resistance that the dergar community
reinforces. In other words, 2 neighborhood has to be a manageable unit.
If there had been trouble, hostility, delinquency or a high crime rate,
the negative aspect of a community may argue for the arbitrary creation
of very small neighborhocd units for certain kinds of services, in order
that the population can really be reached and involved.
Use of Personnel Affects Delineation of a Neighborhood
The availability and training of the personnel to staff a neighbor-
hood program will affect the parameters of a neighborhood unit. More
is meant here than the ratio of professionals to "client." It goes with-
. out saying that one doctor in a clinic will serve a far smaller population
than ten. But personnel can be important in a qualitative sense, as well.
‘The supporting worker can gerie aa commective tissue among professional
services. This is the worker who knows the language of the neieiborhecd
and who is able to direct the people in it to needed mexvices, provide
follow-up, and help the person coordinate the various services that may
be assenbled to meet his particular needs, whether welfare, medical,
educational, or employment, or a combination of any or all of these, in
any problem or crisis. Such personnel make up a psychological teanspore
tation and communication system. An example may make this more concrete;
A store-front room may serve a block. In it may be neighborhood workers
or urban agents who can take information from those on the block and steer
them to adult education, employment training, work crews, mental health
clinic, the hospital, a local lawyer, the housing authority, etc. AlL
—- +--+ Of these services need not be represented in the store-front room, but.
Boneprescre a = a
ge ee ert er me oe
they must be made accessible by effective workers who can communicate
with the paonie’ tha rproarals is designed to serve. The urban agent be-
comes a pathfinder for the individual in need, to all the agencies and
services required. Thus the concept of "neighborhood" is in part defined
by the kind of staff available, because those who help people find their
way through a labyrinth of services make the programs really sdoesetblacn
Actual transportation is of great importance, since the inability to
find one's way is 25 characteristic of the-poor, Their neighborhood, for
many purposes, is walking radius. Here again workers can help make exis-
ting transportation usable ena tharty make far-flung programs accessible
to a neighborhood.
We have stated earlier that Ons varient of the definition of neigh-
borhood is the kind of service that is offered. We are assuming that one
goal is comprehensiveness - thavePfering of a group of interrelated human
services that will raise the aspirations and the opportunities of the
people to be served. It is understood, then, that different services
will serve different geographical areas. As pointed out, the sunt
common denominator may have to be the workers who can link physically .
separated services.
But this is only one alternative. There are others. For example, the
creation of a new institution designed to have such great impact that it
defines the neighborhood. Consider the Comin’ ty School as it exists in
New Haven, Connecticut, and Flint, Michigan. They draw upon the neighbor-
hood of the families whose children attend the school, In New Haven,
Conte School is made as attractive with a center for senior citizens,
rey aa ye ntemilt pees drmeaag ri renege iets vid Had avo tty Os sie th haieeinge | nto eee citar y tie tiene nent ahipabeis 1 > eee «teylgee yes meee
2 ee ae ap a pe ee a eS ES Se a
fs il Ve |
ead 2h
wwe a a Nae we cl.
an auditorium, bocci courts, a park for young mothers, and so on = that
@ sense of community is created by the very fact of the institution.
Other neighborhood services, legal, public health, welfare, etc., are then
brought in to this "neighborhood." Other kinds of institutions may define
the neighborhood by their creation, Probably this is what the multi-
service center in Boston (Roxbury) is attempting to ne In such cases
the neighborhood is geographically larger than that served by the block
store-front with the "pathfinder" personnel, With a lerge center, staff
may literally walk the streets to bring the people to the services con-
centrated in one building.. There is no a priori reason to prepa one
structure of a neighborhood program over the other.
So many neighborhoods are natural neighborhoods, defined by geography,
tradition, or other boundaries that they can be seen quite readily. In
the end, high deference should be given to the local definition of a .
neighborhood. However, the Office of Economic Opportunity can and should
insist that the city consider the many variables, including history and
tradition, which go into the delineation of a neighborhood unit. | It
should ask for careful consideration of demographic data, for detail
about the ethnic background of the people in the neighborhood, the eco-
nomic and educational level, employment opportunities, housing, recreation
and social outlets. A well-thought out proposal is likely to be rich in
this kind of detail.
eM dd SP
ee a:
THE PROGRAM
The substance of the program is no less important than the delination
of the neighborhood, and must be adapted to this delineation.
The first overall requirement for any progrem is the tnyatponans let
the people to be served in the planning and then the operation of the
programs designed to serve then.
It is not easy to involve the inarticulate poor, for whom organization
is not a familiar phenomenon, but it is possible and it is essential. One
clear goal must be to reduce dependency in all areas, not to increase it,
This means that any "tender plant" of a neigaborhood. organization must
be built upon -- any indigenous leadership that is at all éonabrudtave
must be involved in the planning process.
: A list of needs outlined in the program planning stage, health,
educaticn, Sebaccetes should indicate how these needs are felt by tue
population, It is difficult to establish criteria from Washington to
assure this, but there must be some warning signal of local indifference
to neighborhood participation in a program. Furthermore, it is so in-
portant that if there is any doubt, a field trip might be worthwhile.
We can anticipate antipathy and resistance to the organization and voice
of the poor.. But these are risks that must be. accepted as natural and
inevitable and perhaps even welcomed as evidence of involvement.
Survey of Existing Services
A proposal should include a survey of existing social services and
education, including, if possible, cost statistics and the ratio of
professional and supportive personnel to the neighborhood population. © It
“Rx.
ay ee a
“possible that as a beginning strategy for political, financial, or even
y-—,| eee a x al PO Beh i Ji i SRO
- ro _ 3 = eae chee = |
would be useful to learn how accessible existing services are which reach
the segnents of the neighborhood population. Is the new plan going to
‘ build on preexisting services, and if not, why not" Often there are gocd
reasons, but as often, a natural center for people, for example, a priest
whose church has become a focus for informal social services, may be
ignored and a new artificial center created,
Relations with Existing Agencies
In some cases there may be value in by-passing existing social service
agencies. In’ other cases this may be politically unwise or umwise because
of the strength of an agency. In the case of a strong well-supported
agency, it is entirely possible that a neighborhood program should devel-
op from one discipline or area OF Servaces For example, if the Board of
Education were strong and innovative, the idea of a community school
might be the basis for the neighborhood program and education would then
be the nucleus. If there were already. a community mental health. center
with local support, mental health could’ be the nucleus of the community —
action program. Thus, in the Bronx, New York, a community action pro-
gram is emerging from @ mental health center out of the Albert Einstein
Medical School (Dr. Harris Peck). Im other cities, the Youth Exployment,
or Opportunity Center has already become a familiar and accepted part of
neighborhood and so a comprehensive program emerges with the employment
or job training at its core. The judgment probably should be made “on
the ground."
Although comprehensiveness of services may be the goal, it is entirely
*
- 10
social reasons, a simpler or even segmentalized program should be created.
In other words, a city might want to start with health and education only,
and slowly add employment and wavheee much daterideat with teenage recre-
ation. Or, there may be an assault on the problem of teenage delinquency
which required an across-the-board approach directed to that age group
only, leaving families and senior citizens for later. It is possible to
choose to work only with the families of very young children or those
children themselves, on the theory that the very young are the most sal-
vageeble part of the population,
The reasons behind any of these or cther choices.may have validity, in
terms of short end medium range strategy, but theymust not become the
excuse for abandoning the objective of a comprehensive program.
The planned use of staff, including provision for training should be
examined carefully. To what extent does a neighborhood progran plan to
search out indigenous workers, to what extent rely on outsiders? How
have connecting links to outside services been planned? Are they suffi-
cient to make all of the services truly accessible to the population of
“the neighborhood? > eo STE
Some provision should be made for working out a relationship of coop=
eration and connection among the traditional agencies and institutions
which will either work with, control in part, or impede a neighborhood
program, Friction may be inevitable, but its destructive aspect should
be minimized at the planning stage. Avery current example of this is the
creation of neighborhood legal services in New Haven and in Washington,
“D6. In New Haven, at present, there is serious opposition from the ~
SSS ee
ae rime ae
if — a : : sed : jas os ta . Loa . i iia
= ao = srtertee in ely 4. J ed oF ee a Mle ar hn aig ere } far:
il
organized bar which has slowed down the program seriously. In Washington,
the Bar Association and Legal Aid were involved at each step of planning
and have thus far given strong support. Including the traditional service
agencies in the planning process as much as possible and drawing upon their
skill and experience may substitute cooperation for friction.
The interrelationship of citywide or even state agencies is a question
more directly related to the evaluation of an entire community action pro=
gram then for judging the specifics of the neighborhood proposal.
Also a larger matter is the area of the whole question of ingormation
gathering and disseminating devices, commento: data and collection,
both formal and informal. There are more ways of assuring effective con=
munication than can be listed here. Citywide newspaper coverage, radio,
TV, are the ones first considered., The functional illiteracy of many of
‘the people who most need to be reached means that person-to-person ‘com-
munication, and contact through the places most frequented, whether bar or
church, is the basis for an effective communications network that ought
to be in every neighborhood picture.
After a prorat has been Accepted
The style of initiation of a program is something that should be re-
garded with great interest. In some situations a quiet launching might
be preferable to one with fanfare, Crisis exploitation, crisis creation, .
and timing must all be considered. |
We would want to know early what obstacles are anticipated and which
obstacles are in fact faced. Tlliteracy, lack of social cohesiveness, and
_apathy may be prevalent almost every place that a program is contemplated.
What are the pias to deal with them? How are some of these obstacles
considered in the attempt to involve the Hat etborioed in planning its own
program? ;
It is hard to anticipate whether a program will become rigid or calci-
fied. We have already indicated the possibility that application forms,
or rumors of hard choices among cities, may cause a proposing community
to teke a "safe route." If it is made clear from the outset that all of
these programs are frankly experimental and that innovation is desired and
that constant feedback and evaluation, as well as program initiative at
lower S ovais fore desirable, rigidity may be avoided in many places.
There should be mechanisms for anticipating crisis or resistance that
may come from the mobilization of a neighborhood, Program efrectiveness
often means the assertion or creation of 2 political force which will be
fought. There are ways to lay the ground for significant changes, al-
though resistance or even outcry may be inevitable. The situation of the
rent strikes in Mobilization for Youth and the political repercussions,
raise the question of what kind of preparation might be most effective.
Evaluation
Plens for evaluating a neighborhocd proposal must be built into the
proposal from the beginning, This is a subject for another document.
The whole area or community action is too new for us to be aware in ade
vance of the many causes of lags in progréss or even failure. Feedback
must be rapid and constant.
We would want to know who is evaluating the neighborhood program and
against what criteria. Is it part of a larger evaluation scheme of a |
Se
citywide community action program? Are there any plans to test theories
and conclusions against other neighborhood programs in the same and other
cities? |
| Long-range goals should be broken down into sequential steps. Fach
must have a planning period beyond the first allocation of funds. But
detailed plans should be worked out at shorter intabvats than overall plans
and broken down in such a way that parts of a program can be looked at
separately fron other parts of the overall structure. We would want to
Know how often, what kind, and to whom reports are made; how much personal
contact is there by the evaluators; how are they treated at progran heads
quarters, - ignored, exploited or self-supported? Ape periodic reviews
carried out?
7
Are the goals sufficiently formulated in the beginning so that we could
ask later on whether the plans were fulfilled? Whether they were anended?
How recent and how severe and how frequent were the shépdinente’: We would
want to know whether the evaluation is set up in such a way that side
effects could be anticipated or observed, if they occurred.
We would be loath te set up any machanical criteria for judging the
_ effectiveness of a comprehensive neighborhood program. There are some, of
course, each with some limited value. For example, the concept of in-
ereasing life-long earning power, or, @ reduction in unemployment, the
increase of staying power (retention) of young people in high school bebe
outs, in illegitimate births, lowering crime rate, family break-up, age
pital admission, ana so on. Probably all of these statistical measures
cation eee must be enployed, but each: should be. looked at quantitatively to see
14
whether, in fact, it tests the social condition we think it does. For ex-
emple, an increase in employment is a good thing, but if. the Negroes
continue to hold only menial, lower paid jobs, the. employment program is
mo success.
If our goal is the fullest development of the resources and capacities
of each human being, then we will not be satisfied with any simple statis-
tical measures, These will be only our mechanical starting points. The
aspirations of any neighborhood program should escalate with success.
-
Dublin Core
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Title
A name given to the resource
Box 22, Folder 17, Document 27
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/1e6f9665e0ddc7301da751883029394c.pdf
78eb5bf63c1a3a4d01cb639e452bf182
Scripto
Transcription
A written representation of a document.
' J .
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·.,.
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OUTLINE
Neighborhood Programs:
A.
Some Questions
Social Framework
l.
r
E:::iergence of planning
·a. · In general, what conditions J.ed to the emergence of this
specific _neighborhood plan?
b.
Who wi-ote the proposal?
c. What is his (their) relation to the neighborhood?
I
d.
Were neighborhood people involved in th~ planning?
e. · I,f so, how were they involved?
f.
To what extent have planning concepts or methods been borroHed
from other proposa1sz ·
g.
What attempts have been made to adapt transplanted concepts
to the neighborhood?
I
h. What is the role of tbe outside advisor iri the neighborhood
planning?
-· .
i.
2.
What opposition has there been?
'·.
Social and political environment
a.
How is the nei ghborhood defined?
b.
Wnat criteria were used to determine the limits of the
neighborhood?
-- phys ical geography?
-- population to be served?
---
service pr oposed?
combination of above?
/
/
I
I
.··
c.
Has~ inventory been made?
Geographic
Historic.
• . . . . . .. . . -
• ... .
•
- ~ -
_••• • - .. ... , • • 1. , . . . . . ..
· -.- ·
\
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Demo~aphic (length of residence; population turnover;
cot:II;J.uting patterns for work, play, health; education; etc·. )
Ethnic
Health
?l..ental health
Economic · (individual fa.mizy income; places of employment:
Do dollars circulate in neighborhood or flow out, etc.)
Housing ·
Social (num.oers and tYJ;)es of organizations, churches,
neighborhood groups, etc.)
F.ducation (education of people, ntl!llber and tsJl)es of schools,
etc.)
Power structure (fon:al and informal)
. Values an.cl morale (e. g. suspicion; what ability does the ·
neighborhood have ,to cope with its proble:tS?)
..
Mobile ability
d.
_
To what e..~tent is the neiehborhood dependent upon outside resources for jobs; medical care, welfare, education, recreation,
inspiration?
3. What social services are now available to the neighborhood?
a.
What is the per capita ·dollar a.I:lount for social services?
b.
What is the ratio of social 'service · perso:r:i..."lel to the neighborhood population?
(
B.
Goal formation
.... i-
l.
Hierarchy of goals
a.
What are the overriding goals .and how are lesser goals subordinated to them?
b.
What criteria were used to establish priorities of goals?
c. · ·W'aa.t do the neighborhood people thi.Dk · their needs a.re?
.,
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d.
What are the n~~ds for:
Health
I .
F.ducation
Work, jobs, inco~e
.
.
"Skills-of-livi~"
Social cohesiveness
.Advocacy:
.I
2.
l .,
legal and constl!!ler
Have the neighborhood people been involved in establishing the
. goals?
3. Are the programs intended to ma.~e the people less dependent and
more able to cope, or are they merely hand-outs w~ich Will keep
the people dependent?
'
I-
4. Are long-range goals and purposes for the neighborhood specified?
5. How does this specific proposal fit into the long-rang objectives?
.. ,
6. Does it meet Federal criteria of desegregation?
C.
Decision-ma.~ing
l.
/
I
I
/
Institutional network
a.
Do neighborhood organizations already exist?
b.
Is there an identifiable central neighborhood authQrity ·
responsible f or this program?
c.
What is the relationship between this authority and the
existing service agencies -- Federal, state, local, public
and privete?
d.
Should this program be part of an already existing agency?
/
2.
Precess of decision-making
a.
What are the attitudes of the traditional agencies to this
progra:n?
b. ,Are. there ar.y institutional mechanisns for consulting other
___ .. _.... . .. age·n cies- and pressure groups ( traue unions, qhurches, business
·
organizations , poll ti cal pa.rties) ? What are the me·c hanisms?
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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
OQUTLIVE
Neighborhood Programs: Some Questions
A. Social Framework
_ de
2.
Emergence of planning
ae
b.
Co
de
ae
f.
Be
h.
i.
In general, what conditions led to the emergence of this
specific neighborhood plan?
Who wrote the proposal?
What is his (their) relation to the neighborhood?
Were neighborhood people involved in the planning?
If so, how were they involved? | \
To what extent have planning concepts or methods been borrowed
from other proposals?’ ;
What attempts have been made to adapt transplanted concepts
to the neighborhood?
‘
What is the role of the outside advisor in the neighborhood
planning? i
What opposition has there been?
Social and political environment
Qe
be
Ceo
How is the neighborhood defined?
What criteria were used to determine the limits of the
neighborhood? ;
physical geography?
population to be served?
service proposed? a
e-- combination of above?
Has an inventory been made?
Geographic
oe gtagaete! “UML ahd a ciklad euak UCR eae ee i ly eae
B.
Demographic (length of residence; population turnover;
commuting patterns for work, pley, health, education; etc.)
Ethnic
Health
Mental health
Economic: (individual family income; places of employment: |
Do dollars circulate in neighborhood or flow out, etc.)
Housing
Social (nunibers and types of organizations, churches,
neighborhood groups, etc.) [
Education (education of people, nuxber and types of schools,
etc.) a
Power structure (formal and informal)
Values and morale (e.g. suspicion; what ability does the -
neighborhood have to cope with its problems?)
Mobile ability ee,
d. To what extent is the neighborhood dependent upon outside re-
sources for jobs, medical care, welfare, education, recreation,
inspiration?
3. What social services are now available to the neighborhood?
a. What is the per capita dollar amount for social services?
b. What is the ratio of social service personnel to the neigh-
borhood population?
Goal formation
1. Hierarchy of goals
a. What are the overriding goals and how are lesser goals sub-
ordinated to them?
+
ob. What criteria were used to establish priorities of goals?
cc. Waat do the neighborhood people think their needs are?
2.
3.
1.
26
d. What are the needs for:
Health
Education
Work, jobs, tiene
"Sd L1s-of-living"
Social cohesiveness
Advocacy: legal and consumer
Have the neighborhood peonis been involved in establishing the |
goals?
Are the programs intended to make the people less dependent and
more able to cope, or are they merely hand-outs which will keep
the people dependent?
Are long-range goals and purposes for the neighborhood specified?
How does this specific ao as Tit into the long-rang SO ee na
Does it nee Federal criteria of desegregation?
C. Decision-making
Institutional network
a. Do neighborhood organizations already exist?
b. Is there an identifiable central neighborhood saprecapei
responsible for this program?
ce. What is the relationship between this authority and the
existing service agencies -- Federal, state, local, public
and private?
d. Should this program be part of an already existing agency?
Process of decision-making
a. What are the attitudes of the traditional agencies to this
program? '
b. Are there any institutional mechanisms for consulting other
_agenciés and pressure groups (trade unions, churches, business
organizations, political parties)? What are the mechanisms?
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Box 22, Folder 17, Document 28
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/2cc451449d549a181665be3764cd6341.pdf
c2915e8ef0c4f7d6e973fe8e2163e341
Scripto
Transcription
A written representation of a document.
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6.
Does it meet Federal criteria of desegregation?
C• . Decision-~aking
l.
. .. ]
Institutional network
-
a.
...
Do neighborhood organizations already exist?
. b.
Is there an identifiable central neighborhood
authority responsible for this program?
c.
What is the relationship between this
authority and the existing service agencies-Federal, state, local, public and private?
d.
Should this program be ·part of an already
existing agency? ·
3,
/
/· .
./·
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2.
Process of decision-making
. a..
What are the attitudes of · the traditional
agencies to this progra=i.?
b.
A:re there any institutional mechanisms for
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consulting other agencies and pressure
groups (trade unions, churches, business
organization~, political parties)? What
are the mechanisms?
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What are the mechanisms used to rec·o gnize
and handle frictions among the agencies,
groups and this program?
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d.
What are the differences ·in goals and methods
between this program and other agencies and
groul)s?
e.
A:re the people involved to whom the program
is addressed?
t.
Is the factual material on which the plan
is based accessible to the public~
g.
To what extent is pJ.annixig and decisionmaking public?
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Text
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6.
Does it meet Federal criteria of desegregation?
Gel Decision-making
bea
2.
Institutional network
Be
d.
Do neighborhood organizations already exist?
Is there an identifiable central neighborhood
authority responsible for this program?
3
Whet is the relationship between this
authority and the existing service agencies==
Federal, state, local, public and private?
Should this program be! oe of an already
existing agency?
Process of decision-making
. Be
b.
de
Ge
f.
What are the attitudes of the traditional
agencies to this program?
Are there any institutional mechanisms for
consulting other agencies and pressure
groups (trade unions, churches, business
organizations, political parties)? What
are the mechanisms?
What are the mechanisms used to recognize
and handle frictions emong the agencies,
groups and this program?
#
What are the differences in goals and methods
. between this program and other agencies and
' groups?
Are the people involved to whom the program
is aiarene est
.
‘
Is the factual material on which the muah
is based accessible to the public?
To what extent is plesning and Secision,
making public?
ce er i nee one pei onan te pet
f
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Box 22, Folder 17, Document 29
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/b568dbcd5d6057abb4795530ea8e51e6.pdf
014b87cb59d1276adc6b455c4e85d484
Scripto
Transcription
A written representation of a document.
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c c:.-~r::-t·:~""tr1·:CE Gi·J !IOr5I(,iG FO~ THF; P00I{
EUD n:1d o::o i:m ulcl invite t w.:.n ty of the 1.i.oct kno;.;ledgct1.ble pc.opl_e in the
fi eld c,Z hou3in3 the p oor , to .:a. t •.10- day
C O'.'l:::°C;'.'~ncc .
The c.ceting is for
c o:·,t.ul t.o.tio::i. ead the public "1 i ll not be i'cw:l.t:ucl, althou zh oth.:-:r Fcdcrel 1,:g2ncf. es
'!:tc purpose of this c01:i.fo:.:-r.cncc i s t o evaluate . tho fccsibi li ty of provici i~~-t~
y c:lr.:; , .::t ~rices tt,lo poor C'.:.n ~ffo:-d .
1-J ~ er-~ secl-d113 from this confcren.(..e (l)
eco:10.ni-: .:nd :.-:;ucial tc:i:w ; and (2) identif ication of il lte;..1Et ivc pt·ogr.:1.ms o~
housing o·.r.: il.r,blc f or the 3.3 r.1illion r,,o or · househo l d:3 b 1.<, t i1ould otherw i r;e occU?Y
substand~rd or overcrowded u~it ~
cy
1970 .
}!-::re specifi cally thcr~ will be c.n idcntifica.tioa oi the obstucies involved
cutU:v:d .
Tbe c onf f~ rencc will i::,(;! c entered nrott-id f:l.ve issues:
'"rd/or cle,n ~nce arc n.,::;cds;:d; the cozl.:.s involved ; capjb ility of occup~~tt:: to
r,sy; present locc1t1ons of subct~nd.1rd c:nits; oo-.uposition o:Z occupcnts by l"c.1c ~,
avtil ilClbility of lsrd; .nr<:l1it ,i ctural end city planning concerna; th-3 t e -::rmolo.;-
ica l problem~ and opportunities of a lar~e-Dcale buildins and ~ebuil<lin3
�. "
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p:C,J2;i•o:n;
t t~ d1i1it:i C:S nf C,,i;;ting er prO?OS·~ d inGtitutions (fii.,,.:nc:e,
(1) to achtc.J(.! die c r:,nccrr.plrlted voh.n~ in five ye~n:·s , ,m<l (2 )
indus try .nnd conrit::ructicn cost:, ; t ht:i effect on the v.:i lues end c o~·~d il: icn of
8Ci sti~'l.~ houGin3 c.nd n,3i2,hb orhoods; cfficie.ncies thti.t might r esult frc::.1 a
iinZtnc ing the; prosr~mn .
4.
Th:~ Soc 1;:i 1 Issues .
The questions of gh~tl:oizing or de c ent.re lizin3 t he
counseling .:ind bnck-up scr.v ic0:; i-cquircci; t he proble1':'\S of inst~ 1.U.n::, .n n,c :-;n:::;
to this housing .
o f pro gra;.·,s ; the nu·::Dcr of units to be ck:vclopcd :E::o~.i er.ch pro2,r::.:·::1; th.::
To t~kc tl11s .a wor.::;.:h
ile cc..-1 £crcnce., so t h!l t ell p.:lrt1 cipc..i.t;5 ,-:. re t •. 11:i.:~c
•,
0~o t 1Jo• b.our scosi on r.11 ll
oe.
dcv·:.:tcd to f'...;';.Ch cf. the fi r s t fou r
p:;t"t icipont 1n each :Held \JO'~ll cl out line .nnd chair e zdt s e.::;s ion .
each punel ~ill ~a C~'PC~tcd to cubsequontly prepare a suri:;;.iary.
c.11-c.c?.rj
o.:
Tb.:1 i~~o -·1:;:..ato4-· ct
�
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
i einer: ee ae yoke pol om mest
—— AC ws
12837)
COREORENCE Ga YOUSING FOR THE POOR
MUS end O50 would invite twenty of the most imteaLecgaabte people in tie
! £icid of housing the poor, to = twoeday conference. The meeting is for
coucultetion aad the public will not be invited, although other Federal ezencies
will scud observers.
The purpose of this conference is to evaluate the feasibility of providing
éa cstimated 3.35 million additional standard housing units within the next five
years, st prices the peor can afford. we are secking from this conference (1)
& sumnation of what we do and do not know about how the poor ara housed, in physical,
economic and social terma; and (2) identification of alternetiva programs or
coupination of programs and hiploscntation strategies, that might make decont
housing available for the 3.5 million poor households that would otherwise encusy
substandard or overcrowded units by 1970,
mora specifically there will be en identification of the obatacles involved
with mounting a total housing program for the poor, and advice on hew to overcoma
-4
these problems. Ismediate and longeranze vesearch and their priority will be
tf]
cuilincd.
The conference will be centered around five issues:
1. Present housing conditions of the poor. The extent to which rehabilitation
end/or clearance are necded; the costs involved; ca pantry of occupants to
.
r
pays; present Locations of subaotandard units; somposition of oncupents by TACa,
2. Technical Issues. The type of housing required, its location and the
. availability of land; architactural end city planning concerns; the technolog-
ical problema and opportunities of a largeescale building and rebuilding
epee SS sehees Aetennsnend SESH
“ 4 ve 7
5 progz ain} the abilitics of existing or proposed institutions (finsuce,
construction, building, dovelonment, govermuent) to implement the programs.
: meq t ~ a £2
3. Reenenic Issues, ‘The effect
ta
program: (1) to achieve the contemplated volume in five years, and (2)
who the progyam begins to phase outs the effect om the total housing
a the economy of a multi-billicn dolisr
ndustry and construction costs; the effect on the values and condition of
existing housing and neighborhoods; efficiencies that might result from 4.
veevaluation of the economics of the housing industry; alternative imecas of
financing thea progrems.
4. The Social fssues. The questions of ghecttoizing or decentralizing the
4
poor and particularly tne nonewhite poor; the supplemental educational,
counseling and backeup scrvices required; the probloms of installing a menns
ao bhoe
toast and establishing priority eriteria} the attitudes of poor end non-poor
to this housing.
4,
5. Program Issues. The types of programs required to meat the cbjfectiv
Li
expansion or redirection of oxieting programs and the invention of new kir
of progranis; the tumber of units to be developad from enca program; the
phasing and the mix of progvase over the Fiveeyear period.
*
5
ats
To make this a worticvhile conference, so that all participants are talking
from knowledge of the situation te be deslt with, background papers should b
pressred and distributed in edvance on the first four issues.
Ung twoehour session will be deveted to each of the first four aresg of
conacrn, and a half-day wilt be left fer the Program Issues discussion, Cae
porticipant an cach fteld would outline and chair ezch session. The woderator
each penel vill be expested to subsequently prepare a summary.
~
&
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Box 22, Folder 17, Document 30
Box 22
Box 22 Folder 17
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/84b72b78da0003ac03a0570d492640bf.pdf
961a662a9b5069aefd04bb2258013f15
Scripto
Transcription
A written representation of a document.
"·
The Department of Housing and Urban Development
and
The Office of Economic Opportunity
CONFER ENCE ON HOUSING FOR, THE POOR
Ma y 23-24, 1966
Wa s hington Hil ton Hotel
Washington, D.C.
�.,
ti
Agenda for
CONFLmENCE ON HOUSING FOR TIii~ POUR
Department of Housing and Urban Development
and
Office of Economic Opportunity
May 23-24, 1966
Washington, D. C.
Purpose:
The purpose of this Conference is to evaluate the feasibility of
providing several million additional standard housing units within the next five
years, at prices the poor can afford. We are seeking from this Conference (1) a
summary of what we do and do not know about how the poor are housed, in physical,
economic and social terms; and (2) identification of alternative programs or
combinations of programs and implementation strategies, that might make decent
housing available for the several million poor households that would otherwise
occupy substandard or overcrowded units by 1970.
Program
Monday, May 23, 1966
9:00 a.m.
Opening Remarks
Sargent Shriver, Director
Office of Economic Opportunity
Robert C. Wood, Under Secretary
Dept. Housing & Urban Develop.
9:15 a.m.
Conference Procedures
Dr. Morton J. Schussheim
Director, Office of Program Polky
Dept. Housing & Urban Develop.
Mr. Alvin L. Schorr,
Deputy Chief, Research & Plans
Office of Economic Opportunity
9 :,30 a .m.
Statement of Problems and
Its Dimensions
Professor Charles Abrams
Columbia University
(The number of units and poor people in need of better housing;
the extent to which rehabilitation and/or clearance are
required; the costs involved; present locations of substandard
units; composition of occupants by race, age, size and family
composition; the national goal.)
11 :00 a .m.
Social Issues
Pr o fessor Nathan Glazer
University of California
(The questions of deghettoizing the poor and particularly
the nonwhite poor; the supplemental educational, counseling
and back - up services required; the problems of a means test
and establishing priority criteria; the attitudes of poor
and non - poor to this housing; the difficulties and oppor - t un ities of relocation . Should standards be reduced , e . g .
no air conditioning ; room sharing; smaller room size ; etc • . . )
1:00 p . m.
WNCH
�2
Monday, May 23, 1966 (Cont'd)
Technological and Land Use Issues
2:30 - 5:00
Richard J. Canavan
National Association
of Homebuilders
(The ~ype of housing required and its location; the
availability of land; architectural and city planning
concerns, the technological problems and opportunities
of a large-scale building and rebu i lding program; the
abilities of existing or proposed institutions to
implement the program; prospects f or cost reducti on.)
Tuesday, May 24, 1966
9:30 a.m.
Economic Issues
Pro fessor Chester Rapkin
Uni versity o f Pennsylvania
\
(Alt e rn a tive mean s of fi nancing the pr ogr am; the
effect on the economy o f a multi-b i llion do llar
program; the effect on the total housing industry
and constr uction costs; a c ceptable standards of
space and quality; the effect on the values and
cond i t ion of e xisting housi n g a nd n ei ghborhoods;
e ff ici encies that mi ght r esult from a r eeva lu a ti on
of the e conomics of the hous ing i ndust r y.)
12 : 00
2: 00 - 4: 00
LUNCH
Program Issu es
Dr. Lou i s Winnick
Pub li c Affairs Program
The Ford Foundation
(The t ypes of programs to me et the objec t ive ;
possi b le expan sion or red ire ct ion of exi s t ing
programs and t he inv ention of n ew kind s of
programs; possible number of units to be dev eloped;
~he phasing and possible mix of programs over a
several-year period.)
�List of Invited Particip~nts
Conference on Housing for the Poor
Mr. Charles Abrams
Professor of City Planning
Columbia University
Mr. Nathaniel Keith
Consultant
,
Mr~. Ruth Atkins
Community Representatives
Advisory Council
Office of Economic Opportunity
Mr. Saul
Director
National
Mutual
Mr. Richard J ; Canavan
Staff Vice President
Builder Services Division
National Association of Homebuilders
Honorable Sherman Maisel
Board of Governors of the
Federal Reserve System
Dr. Robert Dentler
Center f or Urban Education
Honorable Arthur Okun, Member
Council of Economic Advisers
, Mr. John Eberhardt
National Bureau of Standards
Professor Chester Rapkin
Institute for Environmental Studies
University of Pennsylvania
Professor Bernard Frieden
Departmen t of City and Regional Planning
Massachusetts Institute of Technology
Mr. Nathaniel H. Rogg
Executive Vice President
National Association of Homebuilders
, Mr. Robert Gladstone, President
Robert Gladstone and Associates
'
Dr . William G. Grigsby
Institute for Environmental Studies
University of Pennsylvania
Klaman
of Research
Association of
Savings Banks
Mr. Arthur Levin
Potomac Institute
Mr. Albert M. Cole
President, Reynolds Metals
Development Corporation
, Professor Nathan Glazer
University of California
Dean Burnham Kelly
College of Architecture
Cornell University
'
Dr. John R. Seeley
Chairman, Department of Sociology
Brandeis University
Mr. Miles Stanley
National Advisory Council
Office of Economic Opportunity
Dr . Louis Winnick
Public Affairs Program
The Ford Foundation
�~
Housing Poor Families
The Problem.
A program to house all the nation's poor in decent
housing at rents they can afford contains two distinguishable elements:
i)
how to improve the housing conditions of those presently living in sub-
•
standard quarters; and 2) how to lessen the.financial burden of those who
live in standard quarters at the price of devoting an excessive burden of
· their income for housing.
OEO has e.stimated that upwards of 4 mi·llion poor
families and poor unrelated individuals in 1964 lived in housing that was
dilapidated, lacked ~lumbing facilities, or was overcrowded •.!:/
The number
· who overpay for standard housing is harder to estimate but is large.
For
example, in 1960 rent-income ratios were computed for 5.7 million families
with incomes under $3,000 .
4.4 million of them were paying 25 percent of
their income or more for rent.
An ad ditional .5 million were paying be-
tween 20 and 25 percent of their incomes.
In theory, housing needs of poor people should decline because of
anticipated declines in the proportion of families who are poor and because
o·f continued upgrading of the total housing stock.
Between 1950 and 1960,
however, poor families received only 2.5 million standard units out of a
~t overall increase of 19 million .
That is, families representing 30 per-
cent of the total in 1950 and 20 percent in 1960 showed 13 percent of the
1/
The incidence of housing characteristics in 1960 was applied to 1964 data
about the poor population, producing a total of 4.1 million in such units in
1964. If one proceeds alternatively from the housing stock itself .and the
rate at which improved housing stock reaches poor families, an estimate as
high as 5 million poor families in substandard housing would be produced.
�,,
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2
net ove_rall increase.
Moreover·, in some' places and for some groups' "natural
forces" may exacerbate the problem in the years just ahead.
Low
!
income
f
families presently living in substandard housing are less mobile and have
more deviant characteristics than thoae who were able to take advantage of •
the filtering process during the 1950s.
And such forces as zoning and sub-
division controls are likely to present new impediments to the distribution
1 ·
downward of _standard housing.
That . the current welfare system --- an ex.am.~le
~
of the pure income approach to housing --- has not produced larger results :is
another argument for seeking substantial approach to the supply side of _theI
equation.
Obviously, some improvement will occur naturally and one must assume
(
too that cash income maintenance programs wi ll meet i ncreasing portions of _/
family income de ficit s.
Reasoning fr om 4 mi llion families and indiv iduals
in s ubstandard housing in 1964 and add i t i onal millions pay ing more than
the y c an affor d for st andard hous ing, one may e stimate the object ive more
or less a t wi ll .
OEO has es t imat ed that the ob ject i ve should be pi t ched
I
J
to the expec t a tion tha t the me di an i ncome of families who should be reache d
would be $3, 000 ( f or a f ami ly of fo ur ) .
From th is base, one must de t er-
mi ne an overall objective within t he target date of five or six years.
Developing a Program.
In a pproaching the developmen t of a program
it is necessary to judge what may be built and what may be reclaimed.
Such
{
an approach represents.more than simple economy.
It allows room for famiU.es
that may wish not to give up thei r homes and provides a pattern for contintled
••
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maintenance of the housing supply.
In the decade from 1950 to 1960, some-
thing less than one-fourth of the net increase in standard dwellings represented rehabilitated units.
On one hand, there has been considerable
reduction in the stock of housing that lacks plumbing facilities and is
comparatively easily rehabilitated.
On the other hand, new aids are
available for rehabilitation and new effort is to be invested in it.
tt
is, in any event, necessary to make some assumption about the proportion
of standard housing that would be secured by rehabilitation and the proportion that would be built new.
Similarly, it is necessary to make judgments about the geographic
distribution of additional standard housing.
Although substandard housing
is disproportionately distributed in rural areas, some number of the people
now using it wi 11 be seeking housing i n urban areas.
Finally, plans for a
substantial program should include consideration of staging a buildup of
the construction industry.
For example, a net increase of 1 million units
a y0ar might be built up to at the rate of 200,000 or 300,000 each year for
several years.
The supply of housing for low-income families can be increased either
through government incentives to "the private sector or through direct construction by public housing authorities.
Incentives to the private sector
include -subsidization of land costs and reduction in the cost of bon:owing
building capital (low interest loans or subsidized interest rates).
I'.
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· 11 · •
Use of
�.,
4
these aids provides an attractive incentive to private builders (and rehabilitation contractors) while permitting some control over the allocation
of benefits and rentals or sales prices.
However, these forms of assistance
are not sufficient to produce housing in the $50 a month range.
poor fam:1,.lies must also be subsidized.
To do this;
A program of the JJ1,B.gnitude being
described might be fashioned entirely out of two elements
rental or
purchas.e assistance and interest and land subsidization.
The obverse side
of these assistances are conditions as to beneficiaries and uses.
Obviously, Jll,S.ny variants of the two elements are possible and alternative programs may be fashioned as well.
Related questions that would arise
include the uses and place of code enforcement, the type of research that
might be most productive, the special ne.eds of rural areas, the niethods. of
assuring desegregation, and related needs for providing public and social
services.
l' '
�I
STATEMENT ON URBAN DEVELOPMENT CORP.
One area the Federal government has neglected in its effort
to make lower cost housing av~ilable is the use of technology and
other innovations to help reduce costs.
..
Therefore, the idea of establishing an urban .,development
~orporation to create a large enough "market" in the field of
rehabilitation so as to induce innovations is an attractive one.
~
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I
The need to explore all ways of encouraging rehabilitation of
sub-standard housing is
great.
However, there are a number of uncertanties and risks involved
in launching a UDC program.
To begin with, it is unclear to what extent i echnological and
institution j innovations can reduct costs.
Furthermore, the economic
feasibility of the program, and therefore the assumptions on the degree
of financial support needed, is highly sensitive to such factors as
acquisition costs, rehabilitation costs,and mortgage terms.
In addition, the program cannot be started small.
I
I
It must be
launched on a large enough scale to create the necessary "market" for
innovation.
Therefore, the program must have top-flight leadership,
and it must have a firm commitment on the availability of 22l(d)(3)
below-market funds, FNMA special assistance, and rent supplements.
Given the proposed 30,000 unit target for the first two years
and given the need to operate on a scale of around 10,000 units in
any city, it should be understood that the program will have to be
---
limited to a small number of cities.
i
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�,
It should also be understood that no matter what cost-savings
may be achieved through innovation, major subsidies in one form
or another will still be required to meet the housing needs of
\
the poor.
Recommendations
The Task Force therefore recorrnnends:
1.
That a program along the lines proposed by HUD be
inaugurated to test the capacity of UDC to stimulate technological
innovations.
2.
That the UDC should seek to encourage and to assist-through ·
training, technical assistance, loans and otherwise-- the formation ·
of competent and qualified local non-profit organizations to help
carry out its mission.
3.
That firm commitments be made on the availability of
sufficient 22l(d)(3) below-market funds, FNMA special assistance
I
funds, and rent supplement funds to meet its program objectives.
I
I
4.
That a clear understanding of the relationship of the UDC
to existing local agencies concerned with housing and urban development
be worked out before the program corrnnences .
5.
That careful consideration be given to explor}t'\ith those
most concerned possible political acceptance• of a UDC program
involving new construction as well as rehabilitation.
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Subcommittee on Exe cutive Reorganization of the
Senate Committee on Government Operations
Afternoon session - November 29, 1966 .
Witness~
Richard M. Scammon , Vice - President, Governmental Affairs
Institute , Washi ngton .
1
th' . Scarnmon testified on the need for a mid- decade Census, or an inter -
censal urban Census. He said that although the 1960 Census is out - of- date,
obviously the 197q census count won 1 t be ·available for five years.
A big factor in the obsole scence of data is the increased mobility of the
population . According to . Ya- . Scammon, there is a great need for area data
rather than figures from a city as a whole . I n the questi oning by
Senator Ribicoff this point was elabo:::-ated upon and it was stated that if
information had been available concerning the situation in the Watts
area of Los Angel es , the riots could have been avoided . Senator Ribi coff
said t hat when a census was taken of Los Angeles the bad figures from such
areas as Watts were offset by the figures f:::-om more affluent areas .
Senator Ribicoff pointed out that Yir . Cohen from the Department of ~:EW had
used figures which dated back to 1961 when he testified before the com.~~ t te e
and that government agencies cannot cure social ills without up- to - date
statistics which point definitively to the location of those 'ills .
Senator Rib i coff and lfir . Scammon both agreed that a mid- decade census is
ne cess ary . Senator Ribicoff mentioned that the Office of Eco nomic Opport u.,."li ty
is planning to take a special census in 1968 in st andard metropolitan ar ea s
to complile pertinent data on such statistics as the median family income .
- Vir . Sca.m.~on laid the blame for the fact that a census is taken only every
ten years on the Budget Bureau . He said that the costs involved are so
tremendous that the Budget Bureau would not agree to a more frequent census.
'
Method of t aking the ce nsus
Senator Ribicoff asked whether or not the method of ta..~ing the census is
important. He pointed out that a census was conducted in Watt s where
questionnaires were mailed to the 1·esidents. He questioned whether or
not people at these levels would be interested enough to return the complete d
forms.
Lack of data on adult male Negroes
Senator Rib ico ff also pointed out that i n the last censu s betwe en 15% and
~.r. Sc a~.mon rep lied t hat
there was a slippage in less afflue nt areas of cities, but he did not know
whether Senator Ribicoff's percentages were entirely correct.
2Cf/o of adult male Negroes were mi ssed entirely.
)
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L?16:57, 29 December 2017 (EST)
__________
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Advantages of a five-year census .
Senator Ribicoff said that abnost all grant programs are based on the
number of people and their needs . He claimed that we must wei gh t he
advantage s of a five -year survey in relation to these programs . He said
that a · f i ye-year census would be better for decision ma.~ing by such
administrat ors as the Secretary of h'UD .
Central location for statist ics.
Senator Ribicoff also asked whether there should be a central place for
t he gathering and keeping of statistics, rathe1· than allowing each Department to have operations of its own . ifi r . Scammon sai d that a task forc e
heaaed by Congr essman Gallagher r ecommended s et t ing up a cent r al ban.~ for
statistics, but that a big concern of the Task Force was the right of privacy
of individuals in responding to questionnaires. Senator Ribicoff contended
that where the information was merged, th~ pr.oblem of confidentiality was
lost.
Problems
Senator Ribicoff
to get people to
forei gn areas of
in orde~ to gain
said that the problem of taking an urban census has been
do the work . It was also poi nted out that in problem or
a city, t he census takers must be famili ar with the area .
the confidence of the people who are interviewed.
Spending in.cities
Senator Kennedy asked through the _Chainnan whether it is possible to
determine .how much the government is spending i n ea ch city to rebuild .
He wants to know how we can get better figures . Mr . Scam..'llon said that
this information should be available from the Census Bureau or through
the Subcommittee.
Senators P_!esent:
Ribicoff
Javits
�. ------ - -- - -~
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_
.
Hea:ci ngs before the Subccmmi tt ee on Executive Reor gan i ze.t i. or:.
o f the Senate Govermr..ent Ope rations Corr~tlittee
Afternoon session :
Witness :
Novembe r
30, 1966
Judge GE!org e Ed,·re.1·ds, U. S . Court of Appeals, 6th Circui t ,
F orme r Police Co~.missione r of the City of Detroit; 1962 and
1963.
J udge Edwards outlined for the Subccmmittee the p::.·oble!ns of law enfor c ez:-.ei1t
in the large citi es of the U. S . with examples drawn la1· ge ly f:r ora his o~-,n.
experi ences i n the city of De t::.·oi t . The J"G.dge emphasized tl":e prob l em::: of
the Negro co:r,!nuni ty and the fac t that the a ttitude s of Negroes to,-, ards Ls:w
enforc ement are the product of the ir early environr.1ent mainly in t he South.
J udge Ea.war ds said that r.1ost crh--rie is cc:r.r.li tted by Neg::.·oe s and inflicte d.
[ on othe rs of their own race . He said, hc,;ever, that the large r::2.jority cf
· Negroes are i n favor of l aw enforc e1-::ent and want to see it i::1~roved .
The Judge made the followi ng sugge stions :
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16 .
Fi nd out more facts in regard to c o;·:iplaint s about police brutality .
Transfer trouble:nakers on a police force and those who use bru.tali-::.y .
En d in,restigative arr ests .
Increase police in high crime prec i nct s .
Fe ci.e r e.l government must help loc a liti es co:n"':Jat organized c rime .
Professionalize policemen by upgradic·g their stan dards throue;h bette::.'
trainin g .
Prorr,ot~ Negroe s on an eq_ua l basis with uh i {;es .
Ban polic e dogs in raci al d.err.or2str at ions .
I ntegrate p:)lic e t eams .
Ra i se the pay of po l ic emen .
Hir e more polic er.ien .
Coordinate l aw enforcement agenc i es .
Esta"':Jlish a i'iat ional Police Tr aining College .
Est ab lis h hi gh l e vel board..s within police de:partn,ents to i nvestigate
charges a g ai:1st policerr.en .
Federa l grants -i n - i i d should b e made for police training .
End the autonor!lous :-iature of l aw enfo:r·c e ment bodies .
Witness :
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Robe r t Coles , M.D., ~ese a rch Psycl: iat ris t , Es.rve.::.·d Un i versity
Health Servic e s .
Dr. Coles is a child psychiatrist w:'lo ,,;orte d exten s ively i ri the So·t.1t h e.n.i
studi e d the effect of racial ten s ion on J:egr0 child.::.·en . He stated th~t t he
young Hegro children who fir st att e::-ided white schools i n the S01;.to. and ,_.;~-:o
h ad to er2du.re mar:y torments and ant agonism siowed a great stre ngth of
chara ct e r. He said that i t was a puzzle::;e nt to him that st::.·e s s yr odu2e s ;-:,c-r-::
str ength of character tha,, an envil·o,Jn-21;_t of lu.."\.-ury 01· midcile clas s tr""r: q_uili ty . Eo1.-rever , the Doctor poi n.t e d out that afte::.· the 2.g2. , of twe l ve ,
unde :cpr i vileged c hildren b egin to r eali z e that ob e d i ence to the Bibli c2.l
teac h in g s of their child...hood will r2ot pay off. P.ft e r thi s re a liza~ ion t'::le
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.".·=;rgoes 1·:i1at psycnia trists c all " death of t h e t ea::-t . " 'I:'rseY
then oui te
·· "=D b e co:ne a nti - so c i a l a nci. turn t o a. l i fe of c:::.- ~,e or
deli nq_uen c;-r . .::'b..e Doctor pointed. ou t tr..at sor~e d e linquents do ,,,.co:1g b e c 2.u s 2
they c an f L . i. ::oth i ng r i ght , nothi ng signi f ic ant and ch a l le r..g i ng t o do .
Main questions raised. ·oy the Su"!:l co!!~:i.i ttee :
1.
Rac};:et ee:..-ing i n shEn hous i ng .
Senator Kerille(\}r ask ed J udg e Ed,,:-2.rd.s whe the r orgc.nizeci crir.-.e pla.y s a ~ c._..,
i n the creat ion and. continuat io r.. of slur:: housi ng con cii tion s . The Juc'. ge
s a id that i t probabl y does and Sena to::.- Kenne ci.y tol d the Ch 2..iri,1an that
h e t hinks the Subcomnlittee shoul d expl ore thi s ~ossib ility .
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2.
Defense by citi e s a gain s t riotin ~ .
Senator Ri b i coff aske d the J 1.;.ci.ge Hhat a ci t y c a :1 do to d.e fend i ts e lf
a gainst r i oti ng and at wha t p o i n t the nat ional Guar d s:-::.ould. b e ca l l e d
_in. The Judge s a id t h a t all of his suggest ions HO"'c1ld help :prever.t
r iots , bu t once the ri ot had. c e gun i t c ou1d. be coun-c e1.· ac tec. on l y by
qu ick o:cgan~z a tion and gre a t r,,ob i l i ty of sub st antial forces on t he sic'.e
· o f the l aw . He said that t he f orce us ed mu s t b e ove r Ki.1el.:1.i ng a ,:d di s c i ~.)lined .
He be_l ie v e s that tne Nation a l Guar d s i2ould be c a lle d. to a riot sc ene
whe n ' police gur, i'ire i s n e eded .
3.
Cu l ture o f p-.:> ve:rty .
Se nator Ke n ne ciy a s}:e d Dr . Co l es whe t her th e r e is 2. cu l t uyc of -;:iove i't y
i n the U. S . 'I·:1.e Docto r 1-epli ed that h e does not t :ii ~ '- t ha-'c we reJ.lly
h ave a cult u re of povert y because pe op l ':! a:::e no l onge r i so:'..a teq. due t o
th e exis tenc e and ext e ns i ve n e s s o f a rr.a .ss r::edia o f corr.:,;c:.>l i c a t i ons .
Throug:1. TV a n d othe r me d i a p ::: a c-c i c a lly e v e ryone i n this country is a,.-ra:::-e
of t:C-1e oppo:ct w1iti es wh i ch ex i st o:r at l e a s t t h at ther e i s a nett e r i-,2:y
to live a l t hough the a tt a i ma.ent o f t h a :, l i f e i s not p o s s i b l r, .
lf.
B'J.ss i r. g of schoo l chi l clren .
L
Although D~ . Cole s thi rik s t hat the Eosto:1 e:>..--pe rin e r:t i n bus s i ng c hilclr2n
t o t he s u'::mrb s h e.s b e en qui te suc c e E:s lul , Senat or Rioico ff i ::,pli ed t=-,c:. t
i n hi s y i e1·r the ~;1oney. ::-: i ght better be spE:n t iri~yrov::.. ng s l ~-:--:. c: 0.ucc..t i on
gener a lly . Se nat o:r Ri bicof~ sai d t h a-'c h e d i ci r.o t th i nk t hat the p l a ci r.g
of very poor chi l dren in school s ':-:i t h a f f luent an d well fe d c hi l ci:::.· en
was p s y cholog ically goo ci. for t h e u nd.e r :;,:ci vi l ege d. c h i l d .
5.
Rehab L!. itat i on o f sl'.ll-:i. d,:e l lers .
~ a r.ybocly c cJ.:-, cha::: 6 e i: gi ve n s01:·.2~:1. i r.g t o rf aepll l i b8.edcre on .
Ser.atc:c Rib i coff a ::;ke d ,·,het ne r there i s ar..y h o-::;e fo:::- t ~12 :::ost -vio l e nt
rr1ert::> e r s of sllt7t c o:r_~11u1~i ti es .
1I·i-.:. e :8:> ctor·
t hat i n ::i s op i n2.on
Ee c ited as
ar~ exar::.p le t he a1itob io z;ra~!.i.;y c f lv:s.l col.2:-. X ,.,;10 1-:e.s f r cr:1 a r.::, st u~:foTt.1.L;.f.t =
far:1ily and ·w!".1 0 t ur ned a~-ra·:l ::'ro~n c. li f e of C!."'i 143.215.248.55e to b e ccr...e a l ea.:Iei-· o
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6.
Mea!1s ,;:
·, ~h ; n g
There ,.;.·.
slurn cl:.i J.fu·en .
general ciiscus s ion of wl:.e t:ie r the vast amount of 1rconey beir_z
~catio!1 today is payi ng off . Senator Kennec..y '.·ras v e ry int e. ::.· e s"c e c..
i n findi ;;. _: ~-2tter ways to help slun c h ilfu·e:, .
spent o :-,
Senators present :
Ribicoff
Kennedy
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ITEM.S OF IllfrEREST RELATED 'I'O lfiJD RAISED
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!ill/1.RHTGS OF
RIBICOFF SUBCQl.f:•.ffl'TEE ON EXECUTIVE REORGANIZATION
~m .,
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December 2;
1966
J ~1ES M. HESTER; President, Ne'., York University
Mr. He ster evaluated the contribut i ons which New York University
and similarly situated educational institutions are malcini to the
improve~ent of urban conditions . _The shortage of available financi2.l
r esources creat ed by a lack of sup:9ort from public sources was
s een· as the major obstacle to the broadening of the uni versity role
in u rban affairs .
l.
The I mprovement of Research on Urb211 Problems
President Hest er stated that the effectiveness of university research
int o urban problems was limited by the need to proceed on a projectby-proj ect b asis . The availability of fu.~ds ade~uate to finance lo:1g term programs would l ead to an increased university r esearch contribution.
2.
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The Heed for Greater Univers ity Participation i:-i the Ad:-r.in i stratio:1
of Federal Government Pro1; r a:ns Affecting the City
Senator Ribicoff stressed that the soluti on of urban problems depe:rJ.d.s
upon the :i;:_ecruitment of oual ified persons to carry out proGrams which
Congress ha s authorized . Unless the University can i nc:::·ease its
supply of such personnel, t he objectives of recently enacted l aws
will not be r ealized .
President He ster replied that N. Y. U_. was fulfill i ng its responsl;)l..Ll-v~to the city within the fr amework of existing finaYJci al resources .
GEORGE STEill~LIEB, Professor , Rutgers Uni ve r sity Uroan Studies Cer.te r
Mr . Sternlieb maintained t hat federal programs aimed at alleviating
subst an.dard housine; conditions have not achieved t heir obj e:cti ves
because f eder al hous ing policy has not t a1~en into account the
r ealities of the urban ghetto situation . The primary er:1l1hasis i n
urb a.YJ r ehabilitation should be on the r esponse of the persons. li vi:13
in slum conditions to the mea sures desi gned to help the:n .
1.
Public I e;norance o:f
FRI\.
pro~r2cr.s
!'fir . Sternlieb declared that the sm3.ll ghetto lane.lord usc:ally doe ::;
not know that FHA a s sistance is available. The a110.rc;1e ss of FriA
p rograms is lir.iited to l arge proper ty owner s .
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2.
The I moact of FilA. stande.rds on Urban nehabili tat ion
!tr. Sternlieb emphasized that the adoption of more sensible fina..'1cing
arrangements in the field of low incor.i~ housing was ir,,perative . A
property 01-mer in the ghetto who sought to bring his parcel up to
FHA sta.'1dards would comrni t "econo!!li c suicide
T11e FHA st2.ndards
were uescribed as completely divorced from the housins market and
the capac ity of the neighborhood to sustain such housing .
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3.
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The Need for an Increased Emphasis on th·c: Promotion of Hor:ie
0',mership
Mr . Sternlieb maintained that the e::qJerience with the public housing
program indicated that better pnysical facilities will not produce by
themselves a corresponding improvement in living conditio~s. The G~etto
[ resident will not support m·ban rehabilitation unless it promis e s to
lead to some typ e of home ownership.
4.
The Desirability of Greater Administration Awareness of Urban
Froblerns
Senator Ribicoff criticiz ed the failure of execu-tive departments
generally to concern themselves with t he condition s that their progr2.:r.s
are designed to affect. He declared that the testimony of ~rr . Sternlieb
would enlighten Secretary Weaver and his associates in the Cabinet .
LEES. STERLING, Executive Director, Arr:erican Property Rights Association,
New Yor~ City
Mr. Sterling testified that the abolition of rent controls ar..d the
compulsory re - education of welfare _rec epients would be a large step
toward the solutiqn of New York City' s housing problem. He de"'-anded
that New York City rec,::ive no demonstr ation cities money until r ent
control imd welfare abus es were abolished.
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ITEMS OF D .TTEREST RELATED 'I'O EUD RAISED Nr !illJ\RiiXGS OF
RIBI COFF SUBCOI,ii.U'FrEE OilT EXECUTI VE ru.--ORGAi'EZAI'ION
De c e mber
5, 1966
( mor ning )
CONS'l'.ANTINOS· IX)XIADIS J President , Doxi a dis As sociation
.
Vrr . Doxia di s ma intained that t he cri s is of urba:., s o ciety c oul d b e
·'
a llevi ated only t hrough an appro ach b ase d upon systematic k.nowledGe
of hu man _settlements . The gre at defe ct of existi ng urban develo:p;nen-;-,
p rograms according to 1-ftr . Doxiadis i s t hat they h ave a n i mp act on a
l imite d segme nt of the totality o f urba n existenc e . Ti1e s e effor ts
c onfine d t o a singl e area c annot produce a f f i r mitive r esults bec ause
the problem of mas s tra." lspor tation or t he d ilerr.ma of the c e ntral
cit y are integrally r elat e d to the broader p atterns o f humon
s ettlement. The main points r ai s e d in the t e stimony and d~ring t he
questioni ng p e riod wer e the following :
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The Fa i lure of Feder al Government Progr ams to Sol ve Urba:1 Pr ooler::s .
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Mr . Doxiad.is stated tha t t he public hou s ing and u r ban r e t'.ewal p:•: :
h ave riot pre ve nted a worsening o f t e e ur b a n s itu ation . The d e:::~;:·___ _
c itie s progr a m was de scrib e d as "a · small beginning in t he direc·:.; i o;: o::· ·
c oord i nat ed ac tion , s mall in size and small as c ompared t o t !'le a r e as
i t mus t cove r . " .
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2.
The 11ee d f or Avo idin·g Incre sed Pr essu re on Urbe.n J1.re.e.s
Mr . Doxiadi s sue;gested t h2.t t:.1~ cri s i s of the cit i es ~ight be 2.ggravc:cted
by a substant i a l incre a se in f e d eral ex_penc1i tures for urb&.n d e ve l o:;:irr,3nt .
Ari e a s ing o f the p re s sur e o f exi s ti n[!; cit i es t hrough the c onstru::::ti on
of n ew urban c enter s s hould b e cons i d e red .
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3.
Feder al P-.cor;rar.-1s as a M8 chan:i_sm fo r Accuirinr; I ncreased !(r,owled;,2
o f Ur ban Pr obl ems
Mr . Doxi adi s s t r essed t h a t an awarene ss of t h e i nt e rrela t e d chan1c te r of
urban p r oblems should l ead t o a n i nten s i fied s t udy of s oci al , e c onorr.ic ,
an d po_l i t i cal p a tterns pre va i l i r.g in u r ban areas . He urge d that c;ov::::c:.:.:::e:t::.:.
p r o2:ro.ms should b e u til i z e d to p:t ovide increased knowl edge of these ::i:3."./c,:.::::·:·,::; .
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Th e Preserv at ion of Ouen S-93.ces
Mr . Dix i a di s declared t hat t he c onstruct j_on of public facili tief. in
s electe d areas would cnc ourac;c persons and b usi~esses to l ocate t~~m s e l v es i n a manner which would s erve the int ere::;ts of an enti:ce u rba:'l
r e 6 ion .
The c o:-iservat ion of open l ar,d b y the government is thus
n ecessa:cy t o the creation of an infrastructure of p'J.blic faciJ.ities
whic:, wou ld m8.ke po s sible orderly ur':)an deve lop:~!2nt .
5.
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T11e ResoJut;_on of ti1e Urb2.,, Cri sis D2µ2..rids lJ:,on a Li n i t&.'c icn o;._~
Co~·.~:·.u:1 i_ .J~y J..u~·.o;·Le, ::~:,,-
.M:- . Dcn:iadis called for ov-2rall f-::!o.cre l govern~r,ent co:1t:::-o~ ;:,;: 'c:~,2 ]='-';·, . .::;:·:~,.
of' t'r...t:-c::.!1 st:t"tle t.:i:::"t . '"J:i1t..; .:.cnLi:1l10:~i cn o~· c o~1::riu[.1ity a ~ ~v.:1c.:1:· . .,~.t -~·1 1.--..:: ..._..~ v.
to its owi d2ve lor,,.2::-.t \-; ill :9rc::1-<c2 a i-iorseni.ns or t he
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Subcommittee on Exe2utive R~orga.~i z aticn o f the
Ser.ate Co~mittee on Government Operatio~s
Afternoon s ession :
De c ember
5) 1966
Witne ss:
Walter P. Reuther
Subj e ct:
Problems of the Citie s
Mr. Reuther was accompanied by Jack 'I'. Conway former Deputy Di1·ector
of the Housing and Ho;:;;e Fi nance Agency and OEO . Mr . Re utrse:::- c.e2..i ver2c:
h is statement on behalf of t he six ar..d one-half millicn industrial
workers re:presented by t h e I ndustrial Ur,io:1 Depart ment of the A.FL-CIO
and the millioYJ. and one -ha lf we:nbers of t he United Automobile , P.eros~13..2e
and Agricultural I :Ylp1,.ement Workers of P.neric a.
He advocated a weaving of all the el ements, h ousing, fu"lti - pollution
control and others , in co~oating urban blight . He s ai d that these
efforts must entail the n;ost participation possibl e by eve-:::yone
affected {3-:nd there must be a ma..xi mum coordir:.ation of effort . ·
He also said that t he problen:s of cit_ies are b eyond the e conor::ic c a:pf,::.::..li ti es
of the loc a l gcvernr!lents . However, h e feels t hat the real drive and U"lr 'J.st
rr.ust come fr or.i the l ocal level .
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!fir . Reuthe r proposed the creation of a I~ional Non:pro:;:i t
~-I0J~ng
Coruorat.."!_.on consistin g of the be st :ni:1cs fro::i7.a"oo::i.· ,- L:.na:-,c"e } i!:o.ust ·,y,
education, etc . He prefers t ,1is nongovernme ntal type oi' cor~)o1·at i o0.
b ecause sucn ari organiza.ticn would r:.ot be entrenched i::i. t:ic bm·e:c..uc :::-2.'.:, ic
p atte rns which are to be found in the governr.1ent . He also -chi::i:~s t:1...1.,
thi s type of orga.vi.iz ation would not involve in- fighting i·:hici"l is
sometimes prevalent _in governr:1ent oi ga.n iz ation s . In h is o::_:iinion } a
private orga..."lization would b e much m-::ire :flexible .
Jl"u" . Reu'cher , in suggestinG tnat the taslt cf r etuilding t::.e city be
done by the tot al co~11!Lunity ) de sc-:::ited the Detroit i<etropolitan Ci ti :-t,ei~s '
De velopmcr,t Aut:iori ty , of wl1ic:1 r.e i s no',, chairr.'.lan . He said tl:.at t r,j_s
Author:i.. ty j_s tryi ng to r 2bui2..d the city a ncl to qu2.lify Detroit a s a
D21r:onstration City. 'I~~ is Authority now h as t he .s.cti v 2 :participatio,. o:?
industry , :i:etail stores J churcr,es , c ivil r iG}lts groups 2.:.1c. r,.;21:. y othe::r::, .
He said the y are trying to c :r·eate a co~,11;uni ty :;iar"cnersni:p .
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.t-1,r . Re uther describ e d the three kinds of r:,o:ney w:1ic:1 t he g ::Ol;:;? ,;ill 1..:se
to build hou sinJ as " seed mon e ; ,) developr.,ent rr.oney and r:--.orts2.::.;,2 u:c,.e~-' .
}Ie s aid that t De seed· tj'!OD·::!Y is nee Ce d t o r.12.ke the plans a:~d s·c1143.215.248.551.lc..: c
int erest in the progra~n J bt1.t \·,· ill not b e- r eturned to the dc~ors or t:~s
goverr:.r;;ent i f rr:ac.e thro~isn grants . In thi s rega r d, he se.5- d that unic.:1
p ens ion f ur1ds could p robably b e 'J.sed only for mortgage mor.ey b e cause
the funds are cont.rolled by :Beards w0ich ,~t"J.st de c;ide ,-;het:--.. er t ;:.e inv e "'i:-::,2:--!t
of the r::ioney is se:cm· e . He s a id t hat see cl r::o!'.ley a.n.d d evelopr.'!e,1t mo:-,=--:;' ·.,c,, :2.c',
not "be a. pe:rr:-1i ss ible investr.1ent for t11ost pe!1sior: J:\1rAG.s .
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Oi:e fu_r1ction of the nonpro£'i t co:c-poration ; acco:cdine; to E:_·. Re1..i.:-her;
would be to stir.ml a te and e:1cot.n-age t:-.e ouild:Lr:.s o:.': low i nco,.1e h cusi r.:;:;
by g ivin 6 technical assista n c e to builder.:; wbo would 0:9::::i·ccte fo::: a
profit. He ·s2.id t~>iat t ::1e:·e wouid necessa1·il:,· be ex-.9e1·ts 2.v:1.ila-ole o:c
on call. He said that the key t o t he ·,,l-wle p:c-oblen; of ,r,:oviding lo,.;
i n c o:ne housing is to demonstr2.te the p ra".!t ic al c 2.:p3.bili ty 0£' sa.'-< :in~
public plmming compatible with :9r :!.sate plannine; a:1d builo.i::J.G ·
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Kr. Reuther s aid that h e is very e!1thl,siastic a':)out the Demcnstrat i ons
Ci t ie s Bill. .However ) he criticized Congr ess ' attitude to-.,·a rn ·ct Le
appro:;iriation o:;: n,oney for don;est i c programs . He thinks ti~a t these
prograo,s s hould be fu..rided a...½.ead of tic:2e ; so that the :Oe:92.rtrne:ot::; ,-,ill
k n ow what mone y is available and have the money in tb1e to pl a.., 2.::e::c.ci .
He thinks long term c ommi tt:n2nts should be mao.e for c.or,11:: sti c proc1·a::is
as ,,e l l as for mili t_ary progra:ns ar;d i'or,=i g n aid.
While c ri ticiz ine; pre s ent practices of 12nd use in cities ;
suggested that a l ar.d b2.nk should b e c reated to help l oc.3.l
p r ovi d e· l a,nd for low and r.1oderate inco,:.e housing . :-re s a id
could. l earn a lot from Great Eri tain . He also pointed. out
no slu~s in Swe e.e n .
1·~ Reuther
con:::,u::1i tie. 3
thc:t the U . S .
th~t t her e &:-·::;
Mr . Reutl:.e r · c ont ended t hat the only way to r ed1_;_ce the cost of ouj_lcling
hou ses is to appl y modern ; advar::ced t ec:hriolo~y 2.s i.t h e.s b een e.:ppl i ed
t o such .fields as space ex-plo::.·atio::1 . Ee believes t ::-,2.t a ho·.1s-:: uorth
$16 ; 000 according to present standards could b e developed. an-:: 3old ::·o:::
$8, 000 if i ndustry i s sccn-m how to do i t b y research ins'ciG2,tcd by t h e
gove r nment or a private :::i.on - profi t cor·::;ioratio;1 .
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11.r . Reuther was h igi1ly c ritical of t he present s~rstems of r.~s s t~ ... ,,sus :r'c.?,:~j_c,:1
in this country. rie s ai d that t he _c ar i ndustry ':iill e ver;tuaJ.ly uffe:c fn:;:.1
self- s tra.'1gul at ion o n the high,-rays . Fie thinks it i s ri diculous for a
p erscn to c arry a ton and. a h a l f of rcetal with nir,1 to wcrli: everyds.y .
Ma in que stions r a i se d by Subcorm;ii ttee :
1.
Fa1~t icii;>ati on by private inc1.11str:y in r eOuilC.ir..f- ci ti.es .
l-1r . Ri b ::.coff 2.s~ed i-!D.lter Beuther whe:::. ratio \-:culo. b e de s i :rE..ble :o:cp art ici.p:i.tion by private indus t r y 2.:.1tl go\rey_~:.!e P-t i :r1 r ebuilf~inG 2i t i er, .
Mr . ~e utr..er replied that he t hcc:::;_lt the mi:-i. irau:1 ratio s h ould oo $1 o:::
gove:rr.i~G2nt mo!1e:>' for e--..rer:/ ·~5 of private fu.r. c~.s used . ·I 1his \·.:-a s the r 2.-:.i.0
p r oposed by Davi d Rockefeller.
2.
Tee.chin;::; mi c r s.,, ts t o live in the c:i.ty .
The Cnairt,1EL'1 aske d w:io t eaches the farm p e o::;ile h ow to live i:1 c.itio s 21c.
how to e:void tur-ning hrn.l :::- ins into slu'.'1 ~2ss . He c laice d thi s i s o;t.:::::,
the gli ght of public housing in r.-.2.r!y cities . r-:r . Re uther :;aic. t nat t:--,::
w1fort-..1r).ate thi.Dg is th a"c most new city d,,•ellers leE..l'[", i'l'O",. tt:.e :;::,20::_:iL, ,. -:: .::Xnv·.-i tic l ec.. st. abou"~ l:r_;·.., to li\~8 ~n a . : . : ~~y . __. . :::. :.(~ "'.:11.::.J.:, : .::c·:22;.-- : :1:.:~ .-::)_·;~,
b e cr6aniz e d from the slutT!s to co ba c~ into the sJ.u~~s e.2:.d st':.O\·! -.9co~l.e >o-·:·
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to live £j_nd ta..~e ce.r-e of rel12..bi.litated fu""'ld nei,.;:- housing.
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Senator Ribicofi' seid t11at ~atc :r
Oil
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i;1 vne he r~r ings
will
becomes a.
3.
Se:nator RibiGoff a·skecl ho·w i s the govern:nent org.:Lu.ized to tc..~:e caJ."~ ot
the pro1)lems of urban -~~r.-1·2 ric 2.. . t·T . Co::P,-ts_:_y.. said t!-:at t !1.e so --1e!·1:r~er!.lc 1 s
r ead::r for a ne\; Eoover Cc:.1~·;1ission . }Ie m2.de t 11e :£'oll0'".-.ring su3ge st :=-.0:1::
Y(n.ich wo"'..lld in his opinio:1 str~::Gthen the go-,.:""e:!."'nt1ent ' e. c.bi l i t~.- to de cJ_
·with tl1e urba!:t crisis:
1
b.
Group functions together as was done in t.he D:!fer1se :r2r, urt~n·:::rrt a~1.Q
Coordinate from above:: .
cutting of pro ::::rai:13 Con':! by the Burer·.u of the I,~d ge t .
would pl(lll &:c.d de·-;elop :;:>rogrc.:.1s f:c-0:1 •,·/ hi cl1 _t-ll·.-: i>::--c s!.d/:~n t cov.1. ,::
select the rcost useful . T.he a.dv~tr.\ced. I>lennj_ng futh~·t.ion of t ~:,~
execut:L-:1,~ br:~nch s hould :1ot. co6e u n d\-::j_... ~~he Eu.re au o f th e 5-J d{: :·: ~~
bec au.se it s}1ould be done o·J.t front nn1 n.\')t t e l1ii1d clc st.:d Cl.Oi..:i ~·s .
4
d.
,
}'u.r1d a.'1ead so t hat. tl1e a,;encies vron 1 t have to b es for r::or~~\ Y 2s.c h
,rea.r .
e.
Create a rnecha!1:i.st;t ( su.c~1 a s a l oc2.l coordinat o2.. ) i.Ihicll -:: sx! .Jv.-::.~u::
all the tool=· avails.Ole and fit thern t O th2 !le eds o f ~.oc2.l.
corrll--nuni t i es J:"CrtC..er than --~:"ice v e:csa .
a genius at i.:.he loc a l 1 evel
federal pro grc~c.s .
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R.ole of l abor i.n r e\ri sio!"l cf t:1e c:Lt~--- .
Ee :::.aicl t b..: .:.t eleven · \.1..ni cr:i s c..r c ~)2r tici~)2.ti:) .~~ . .:.::-::l
cre a .J(:. e Q a cotins.il 2.::-id have do:·~e cu~:-i e.x citi nc; t l1in[;s e. s hoJ.O.i.n-~ .::! l sr_;:::-:·- 2
2uJ.d build i ng p l ayt; ::'ol:;.n ds .
Se nato:t Ke:--~11eCy wl;.:.o .·tas not present ask8d t h.~cu_-.30.. · -L~e Che.i 1·tt~2.n -..:~ ::;t:.};e; ~·
!1:r. F:-~ ut~er \-.1:1.s in favor of Co:·:~~rJ..;] :i.ty· DeveJ.o~:tn8nt Cor i:. or-2..tions c.t "Lt .~:
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l ocal level . ff:Y . Reut:1.er said he is very much in fa,,-or of theL'l . :S:e ,:e..,ts
a N2:tional Corporation to work with the total probler.! and t o 02 bc:.c~ed
u p by local corpo2:·at io!1s .
6.
National Nor.:profit Housing Corp orc.tion .
Senator Ri.oicoff said that the only person· he could think of ".,ho would
be capable of a ssemblins the r.ecess ary leve l of representation fror,
foun c.ations , u__--i.i versi ties , l abor , fin2.nce , ir::dustry and ot::ie:::- fields
to participate i:1 t he n2.tional c or pora .:.ion 1 would be t he Pre side nt .
The Senator said t!lat he h opes t he President will consider ti:-1is :_;;ropc s2.l .
0
7.
Ho':-r to avoid continua tion of c. ,,.;e lfare sta te .
J
Consres s ma..11 J ames Scheuer ( D - N. Y . ) who was present at th:; h e ari ngs
asked Mr . Reuther hm; third genera tion. wel::'Etre famil ies 8Ld :9:.·ec.ictc.':)2..e
drop - outs c 8.J.'1 "be avoi ded . l/,r . Rc1.:the r said that tne recc:r:8 2nci.at icns
made by tr..e ~ e s idec1t ' s Cow:1i. s s i er:. 0:1 .114cr..2.t i 5m s:1ould be i tr:_pl e,~,entcc,.
"'1 - e pror:-""""
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be allowe d to do this without loosin8 his welfare ::;:,ayment so tha t the
person will aspire to living on a hit:;her pla.ri.e . ·
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Mr . Re uther said thc.t a.ri.other wa y to avoid a welf are state 8..."ld put
people to work is to have a s t.,_nd2.rdi zed c o::-;:;,'J.t. e:::-' z ed e;n:::,7 o·-::::cr.,. n.:- ·
At p re sent 1 Mr . Re ut h e r clair:12d 1 ttie :.:"i 1· c,y e;1 c,rei:criect s--ca--:, 2 syste:,,s 2.·'.·-=
obstacles t o the setting up o f efficie r:.t c ctT::_:iut ers ,:hich c ould m2."'.:.ch :.::-..
une,·a:;,loyed p e r son to a job withi n a r.:att er o -: r:,i nutes . i,'..r . R2u t h e r
s aid t hat the whole p e :!: son 1 his hobbi es a s we ll 2.s h i s ski lls , is n o".;
ta:~e n i nto account u..r1 c.er the p r e s e nt S'.:. at e systecns .
8.
Missin p; e l ement
in the s J.uc:-1s .
Conbressr.1an S~heuer asked what i s ti-!e missi;:r.t3 element that has no-r, ce .:::n
u sed to h e lp the cit y and ,-:heth e:..- this ele,:1e ::1t i s r.10:ce suLoidiz e c1 :10L,s :.:-.f/ '
Mr . Conwa y s a id ti1at on e r e a s on the gov e r nrr.8:1'-:, h as not h e l p e d · enou gh 5.:..
subsidi zing h ousing i s that in t he. o e:;i.nnin c; EBJ,'A was a f i n2.11e:ial i r. st~.tt·.~-:'..r.,.'.:.
macle avai l abl e fo r p riv at e i r.dust,:y . He said that the A;;,e,~cy '.-ia s n ot :;,0oj:::. ,
o r i ented.
Change in Witness s che dule :
An t hony De cha".lt , Presid ent , ::-Io.t icna.J_ Fc.rrr.e:r:s lin ic::-i '., i l l not t e stify c ::-.
Tuesday Deceuber 6 . D~-. ;-/ill iac!l Dcebele , Gre.c:.u 2.te School of D:::sie;n ,
Harvard Un i versi t y w2.s shLfted f r o:n \·lcdr:esda y t o 'I \ .:.esd.8.:f L:,s-'.:.e.s.d .
I,Ie l vin Thom1 Ne.ti o r.al I ndian Youth Council n B.s been 2.dcle d. ·co tbe li s t fo:::Monci.ay , December 12 .
M<::r:i'.)e rs pre sent:
Senator Ribie:off
Coc~ressr:!a..'1 J ames H. Scheuer ,
( D-:'TY )
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ITK.~S O? I !"'U'2~S-~} ~Cl.)/l!~l; ~C; · }0)~ R:\ISE!D ;.\'r }f.SP:.Rif\TGS
OF RIBIC ()?:f' su:::!C:-=-~ii·:?~~- c:-; E(_ECU-:r·rv~ RSOl~GJ:.~TIZ..6..:J~'I0:·-1
December
6, 1966
( Morning )
BAYARD RUSTII'J , Exe cutive Director , A. E.i,ili_p ·· Randolph Institute
Mr . Rustin e.ttrioui:,ed r ecent :nEJ.r2ifesta tions of r a cial conflict to e.
n at ional sh or cage of jobs , educational opportu.,.'1.i ties , 2.nd housin; 1 which
c reates the fee.r tha t j\iegro advances will prove detrimental to w:C.ites .
He urged the adoption 0£' the proposed 11 freedc:;i budget" so that sc2. rcities
i n the fields of e;u.ployr.ient , ·housing , 2nd educe.tion ce.n ce elimins.ted .
An econo~ic and sociolocica l ana lysis of r a cial prejudice and e.lienation
c ompels the concl usion tha t progress can be achieved only tbrou--3;h a
L'l2.ssive n2.tional commitment to t he :i.r.iprove;rrent of urban concli tions . The
IT:.atn p oints r a j_sed in the testimon y 2.c1d the questioning period were toe
following :
1.
The Effect of tl, e Eousin3 Shortage on n~.ce Relat:i.ons
Mr . Rust:i.n stress e d t:1. e ir:1port,2.nce of ass uri ne; all inco,':le grou:9s effec"-:.i ,:e
a c ces s to tte housi n3 rr,a r~ e t . He pointed out that the existence o:f h oi.;.s i n~
scarcities l ea ds wni·t.cs to support re st rictive prac tic es 2nd f'orces r{e[,;ro-2 s
to l j_ve in substanda rd hous i n.3 .
2.
The Fa ilure of t he 1,:::1 r~-cet ?-'.e cha:1.ism
Mr, Rus tin support e d the view of Profess or G3.lbr2 ith t ha t socia l and estbe~ic
values should have prior:i.ty over fin anc i a l c ons iderat ions in urba n develop:nent .
A . FrlILIP RAJTDOLPrt , President , A. Pnilip R-2.ndolph Institute
Mr. Randolph ana lyzed the probl em of winnins politica l support for the
11 fr eedor:i bud2;et " appro::'. ch to urban prob l en s .
He decl a r e d t :C.at 2. c caJ.i t ion
of libe ral el ements could b e fanne d with s,Lfficient stre: Ds;th to ·,ii.n appro,:a l
for t he expenditure of $185 billion of r edera l fu"lds
..
over a period of ten
yea rs. Th e r:12. in poi n";:,s r ai sed in the testiJ:iony and cluri:!:lg the ques tioning
period 1-:e re the followin g :
1.
Tne ~ i'fect of Fe der2.l Hou.sin~ Polici es
Mr, Ra ncJo1:Jh asserted tte~ FeC::e1-e l prog r-2.2s have subsidized housinsi; fer
persons i n the r:i iod1 e and D.p~e r incc,,:e gr01...r;_:is to the neg;::1.. ect of t he :poor.
The fli ght fro:n the c entra l ci ty to suburbia ha s bee n nac.e p ossible l-i;yFedere.l e:·c-peudi tures , whJ.le a nuch s ~,a.ll e r c:..:ilOUci ::, has gone t o provide
t h e p oor wit:1 hi 6 }1-rise se;rese.ted bousin3: projects. ?-Ir, Rs.ndcl ph noted
tD.2..~ t!:is cc~cli.lsic~1 ~. ,~::.s se-'.: foi-t,':: i:--! tl!e :re;:01.,. ~ cf tI":2 1,.;}1ite }Ic-usr:: C::r:_~~2:r2:-.~c:
on Civil ~ights .
�,I
. . ..
2.
2
The Heed for Planned Soc~al. Ir..·,;estr,1ent
Mr. Randolph advoc a ted the adopU.on of a program of planntne: social
investment in urban develop,ent rather tha n a counter subsidy for l ow-income ,- ·
housing .
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su1,:~~!ARY O:-F' E:~Ar:r:;Gs EE?0!--3 StJ2,:;c1-:2·-J143.215.248.55;'l-; ~;E OI\I ~8XECUI' IV3 ~-:£:C1RGAT:IZ..D/?I C-i~ .
0? j,iflE SEi.'T A'I '~ CO!,:.MJ.~. I '2:S 01] It{T~CV'I'~Vi PJ~ORGA~:IZAT ~:or.;
Stibj2ct :
\r!i tness :
Geru.ld I..J - PhiJ.lippt.::, Sh-=.irr_r.e. n of t!1e 503.rC. o:f t !1e Ge ne:~ 'aJ_
Electri_c Co~rJnt1y
l"~ r . PhillJ.ppe se.icl that GE !~eis 300 , 000 e:--i~r l oy·ees j_n the TJnj_tea. S ta tr~s }
I.'10st of v:[101r! wo~ck and 1i,_...e i :--1 cities. He said tr13.-t , 3.s u con se (luc~ t! ct":: ;
1
his c o:r.r. any 5.s deeply cor1ccrned v;ith the ,,,tell - b e ins of cities ar!d
the people who J.i ,.re nnd \.,:ori-: ther,2 ~
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}!e: tol.d the Subcoi'~nr:ittec tf.:at ti"Jc .re:i10di e -.-; 1-:-e
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pro"b1er:-1--.-s of the ci t:Les :-;~ust. cc!"..:c; t:---;rou3h tte c:cer~.t :t . ~,.e. j c.~1!:.dr;~ c:-Z'
public and private r esourc es to ucl::i.eve wr.a t ne:Lther c~:::-1 concc:d.·vc:..:,;.. ~.r
do a lone .
1•·! r . F.:1illippe pointed out th 3. t t ndus·try contrib1.1tc.: f~ to the p :tcbl e-.~s
of th e cities t!:-ircugC tlle disposal of u_'fl-,;:2.nt e d \·;=1.::., tca £1~1::l. t. :rn:t'.:Cic
conges ti en ., resul t,j nt; f ror:1 r11c':..rer:.: ent o.t i ndu.ztry r.s go·ods e.~tl 1::c c.1;1 .~.
0 ~'1 the othe 1~ h and ., it1c~t:stry is a r~a. j 0 r vie t i !'J of thc~:3(~ ;::.a~:~:2 p ·~·ol·J_::: ~:-.; .'3
·t.eca1.1se it, suff ers ad6eci cos t ~~ frc,l:.! traff ic con;~es~icr:1, 2i1. p ol.11.r"c .lo:1 ,
\·tater ~pollution e.nc1 v.::.nd.2-..lisrn .
f-1r. I'hilltppe listec3 t he rl1:l j o:r· c o!:.tribut io:1s 1:)e j_ r:c r;r-:::!2 b~r G ~~ t o
teln t~nnrove c:i.tie s : P-.:c,<: u.::tio~1 of h i&,::'; - p c rf or:-r:.:-} ~1ce ec;._'..:.~r~~:e:ni.. f'c:.. .
f ast tr-ar:s i t tr2. i n r. , rr.:. ;1u.fa~t·u.re of GtO=-:!ic -~~c ,. .#c'!r·::d ;~en.e:c.2. ~j_ ni; p12d ::.s
-{ii~~e d~-c143.215.248.55,_.,;~1143.215.248.55;~$ t~~/143.215.248.55e,~r143.215.248.55 16:57, 29 December 2017 (EST)'c·!~~e ~:~
143.215.248.55 16:57, 29 December 2017 (EST):~t;:: ~~::~~:143.215.248.55 ~!;/~z
i ;·-:;
Irf:o~por.:1.t0 cl.J }#J a v e f oy-.·. n~d Ge!l.e:ra.l L e~J."c.::. n::: Cox-po;.. .at ion cs
2.
·,~oir1 J.:.
vent ure to f urthe r -t.Le ec:u.c o. t.ion oi· dis:1.G·,.re..at.e.i:::cd pers c:•nn .
GE ha s t entat ive pla ns t o c r eate ent ire143.215.248.55 citi~ s .
A CC·l~.ri~ur-Li t :,r
Syster:--:.s Deve.lo;:tent DI \-~s:i.oL t as
1. Ch:i.n~; es i n· the bt:.ild :i n[; proct.::~1s tL1rC) u.t;h t he 2.1:1:~,:.ic at icn of r c~;,2;_j_ :_,-·e:L
a~d e n~ i nee:ri r.ig t o c~esi~.:-.1 eJ.ect1,o -:1~tec:.1r~ nica l e o1!~·9c!11::~~rt.s t ~·.:D.-t.
de lj_ver b~::tte r IJerforr;-~~1 r.:cc and J. o~·:e:c - i~1 - p1.:1.ce costs.
2. Util:L zi~3 a. r.; yste:-:~s pler:n i.1:.c ap::,_ :cco c: h to a t~ ~iel~1~) n e ·,.r p:cvto:.y-,::·,r;
cc~:r:21-1.ni t..i_es 1::..:r..:';e eno·1 ch to s··,._,_ppo r~ a fciJ.. c.:c;;1p.l{?.J ,:2:1t o:::·
mtmicipal ser•...-j.c es ,.
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2
Mr . Ph illippe s a i d that wor~c by GE scientists and i n f orma ti on spe cis.l is t s
has led to c ont ra ct s f or s tudies on appl ying sys t e ms analys is t ec hn ique s
to ov era l l u r ba n pla nni ng ; to inte g rated polic e , fi re and ar.!°bulanc e
c ommunication networks e tc .
He sugges t ed t ha t t here be mo re and b ett e r c orrmur1 i c a tion 2.nd coopera t i on.
b e t ween bus i nes s l ea de r s and political l ea dc::rs i n see}:ins t h e sol u U.0;1s
to u r ban p roblems . He t hen des cribe d di ffer e nt pro j ects in wh ic l1 his
c ompany h as pa rticipated. He al s o sa id t ha t r.iore ext e n s i ve re sea r :::~1 is
n ee de d into the dem2. nds of th e city . GE i s wo r k ing to disc over h o w
i t ca n effe ctivel y apply to cit y p roblems what ,,a s l ea rn e d through its
part icipat ion in sys t ems development for t he de fe nse a nd the s pace
prog r an:s .
TEMPO , a GE c e nte r in Santa Narb3. r a , Ca li f ornia , h as a n expe rimentc.l
program with th e City of De troi t to int r oduce prog rar.1 pa c k2. Gi n.s a nd
budge t ine; t echn iques l ea r ned t broue :1 its c ost/ eff e c ti vene ss work on
De f e ns e De pa rtment problems . It i s a lso working wi t h the Uni versi t y
of Minnesota on an expe r i ment a l city pro 6 r am to b e b uilt n ea r
Minneapoii s .
On e big c ompl a i nt wh i ch .Mr . Pb illippe ma de c once r n inG present c ondi ".:, i oYJ.s
wa s tha t b u i l dine; c odes or hous ing c o·des , ele ct r ica l or plurr.ci:r..g c ode s
do n ot promote e f f ici e n cy i n c onst ruct i on and e.r e , i n f a ct , ins t i tut i o:1:.11
i nh ib i t ors to eff i ci e ncy in r ebui l di ng our u rba n areas .
He a l s o c r i U. ci zed p r e sent gove r nme nta l policy i n r e 6 a rd to the di st1·i ou ti on of pa t e nt ri ghts t o i n v e n'.:.i ons a ri sing out of r e sea rch a n d d ev l'! l op me nt carr i e d on by private i ndust r y , but fi nanced i n whole or in pe.rt
b y the Gove rn.rne:1t . He s a i d t hat pre sent pol ic y disc ou r age s p a r t ici p3. t :i. on
b y p ri vate i ndustry .
He approve d of f a nning ne w type s of c omb i ned publ ic and p riva t e co r po r a t ions gea r ed to r.1ceti:1g urba n ne e d s , b ut di d not f a vo r a COJ,·'.SAT type
of corpo ration . He b el ie ve s it would b e b ette r t o ha ve an a£en cy 1 ik e
1-TASA, wi t h a n acc e pt e d ob j e c t i ve f or the ~e ne r a l p ublic . Ee s a id u~is
i s a socia l probJ. e:r. a nd s hould b e k ept i n t he n onp rof i t a r ea . · In hi::;
op inion , r e habili t at ion a nd low- i ncor.1e h ousing i n g e nera l are not
a t tra c t i ve t o p r ivate i nves tors . Be s a id tha t Thoma s Paine , t he
ma na ger of GE I s TEMPO o r ga nj.zat l on , is urein~ c r eat io:1 of a n Urba n
De ve lov 11e nt Corpor a ti on t o buil d f i ve millj_on ne ,r h ous i ne; rn1 i ts in s L ;:,1
area s over t h e next de ca de a t an es tima t e d cos t of son,e $50 bil li on .
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l·litness :
Fi1il i p }1 . Ha ll e:-1 ., ?1·2s::_ dent , I,·~3·ur:i. ce :Fe.2.k r,;E:dico.l IT\.t:.16. ,
pj_tts btlr[)! , Penns.yl v2niH .
Mr . H:--ill e~ told t11e Stlbco11:;:d.tte;~ th::.t tho:::! poteD ti2.1 rol. e for tf::;;
sn1alle:r f'oundnt.ions i n th·~ Un:1.tcd Stn tes 11~'"~~ :r1ot yet ~et:::!J. t a ~~}2d
in relation to the urban condition .
He sugge s ted th2. t the ~lul)cor:!.."11itte i::: or t-;o::ne otbcr app rori:r:i.atc .::.c r~ n c~/
shou.J.d co:i.1.vent:; at l~b.e nGtJ.ona.l level a. ;,. O·rl,: ing confe~cc:nce on the c~. -t ,:;is
in t'b e c:Lt ies ) invit:i.nc as r:i.n n)r of the sr;:a l lc:1. fo unda.ticr:s 2-s c ou1.. f~
b e i::-1.:~er ested and induc ed in"'co a.ttendi112; s u..:!h a session .
In i~·r r . l!n1 le~ 1 s opin:tor~ ) by u:t J.l:i.zinz its freedorn ·to a,c-~ in S\l~J ~_·, cr~_,j_·:1,:.
and initJ.ati.ng sol.utior.ls to the 11rbc..:r1 p~obJ. e~-:ts -;,:b ic h n re r : :-! s: :143.215.248.55 :-:;.~~ ·::.
to action l:;y ex:i. stin.::; r;ublic a e enci(!S end i n~;t itut.j.on.s, the ~--c.~c:c\t ~_c ;·;
ca n IJOint out r;rove:n pu.ths for soc :i et~,r to folJ_c~v .
Senator Ri b:i.c of:t ...,. a s vr: 1...y inte1·es t t~ q. J n ;.:fly 1Gcn li t.ic~s 1-:c :·:.:p
e.nt1q u.:.:. te d -ouil d in.:; cod~s . }Ie s a i d :.r.o t n(~n rly eveI.'Y w1-;.:.:-;r.~s~1
so f a r <lur:1.ns t.l: e h ea r:i.n£.~c; };a s cc1r~·:;J..9.:i n t: d ti.Uo;.rt o;:,::, o~!.. c t. e
buil dinc c ode3 . I·:143.215.248.55 . F.:·.ij.lli p pt~ f:,ai d the:. t, c.:E: hr1. s two r:1en n~:;k i n:-;
a s t u.cty . of t r1.1 ildin;?; c adet; ri,.nd t.11~:::,t i n ex~1lnini1·1[; ~hr~ .:i e in c,:_c};
of the 50 stnt2s t bc::r Da ve: fo 1..1nd tha t t h e r e };..~.\-e 1=-eer.i :.1. cr ::;1..J~·sta n ti a.l t:ff ·:;.r t.s rao d':~ to l~p ~datc th e:::.e code; ::, . L oc-:1 1. ~Jr:o:q:l. {·~
s e e:m di s inclined t o ri.18 k e chc.r1 _.~;es 1-.ec r:.u ::_;e t r·1e:_.1 n:a~r ; i:i -:. ----2 t ~) l E"·::~.!~~-~
llG'.iT s1-~il1s ~ l o c a l poJ.it.5.c::tl :i.n t. c:ce~-; t s a r e op~}C~~;cc1 , l aOo:(' ::"':-:-.cto::-.-;:;
come :tnt o lJla. y, there is z:.:;i ine r t:i.::i in t hj.s eree., 8. :) d n:O:?t
c iti e ::; ha ve pi e c e;·!1cs. l rJo.lj_c:i.es o:f -pur.·c :1-:!. si~[~ ·
It ,ra s a g r e ed that th e j)0rno~1st. rnt. j_on s C.i. ti c:: s i\c t ~r~a y brj_ n:: n~: c i...~t.
so:ne !)TOgress in thj_ s area. b ece..1.ls e of the r\=:qt:.ir·:::::-~1:.~n t. :i. n tJ1i:!
Act t ha t t h e citi es hRv e node r n ~uildi nJ cedes in order t o
qun.1:l.fy for a::;s i s t a nee .
1
Sena tor T~ibf co:2f" i.:.skt~d wltG 't.J: e :r a vas t t ax 1.,t ri tr.: -o f f f or a~:.i t -po3-l u tior! rr,ec s u r0:: s w·o:J..l c1 b e :=:.n inc ent,i ve to y1ri ·vc~ L<:! ). 1i dus ::.1·y
to t..ake st. ci:,~~ in "'L h:Ls d j. 1·c;(:: t :i. or.1 .
Jv:r . Pil i l J..i J;te t~a i d ::.1~ -..:o:J}_,:
encoura.fe p r :L -:r at c effo1. . ts :L:1 th~t :f i eld . }Io·,,rev·~: ::· ., t h (: re:~·J
p 1--001. E:rn i s t h~tt Jt l. s no~~ ei' Zi.c:i. ·:=.:::-jt t c, e.dd t o o l d ·1::.,J.:-,t-:l°- 3.
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wou1c1 b G Gette r t o -bu:1..l d r-;ev.~ pln:1.t~3 wit}1 z.!-l':,-, t - po]_J. u·~.ion _f\ ~~ t :~j-•,;,_;.,
bu.t i t will ~ B ~ ~e a l o:r~i~ tlr,:e t o r c~:pl a.ce e x i ;3tj 1;.~:; ~1l.z :n:t:.2. .
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SE:nator }Cenncd:r o.f :f\:(~w ·yorl-: ':",; as ext:ri:::::i--;11;:ly i:1t,2rc-~stf:d. j_:-i t:c,yit tG
to get pri v·a te i n 6ustr:f to buJ.1d pl2.nt.s in sue!~ 2.r,::c.s ~.:s ~i:1. :rlc::::
and Bedfo~... d - StuyvE:s .:1.:1t. fa_:::ter r:·.u(~h qt~es tic..::rLjr;:2.: --' ttc C>s.i.:t·1.-~~-"~1
o::-. GE fi~·1 0J. l~l ad:nitted. t~.r.lt his co.~.~pany '.-.r o uld ncr~ ·be i n~:(.::rrj~;t~:·. i
i n l ocat i ~1; in such areas bec8.t.1se of ·the foll c·,\ri:-1i di 3 a _d-:tc.1 11 t :! .; ..;:-; :.
1.
\-!01.Ud not G
2.
~·Tou..ld 11ot" Oe clos e to s1.1p~lies and n~a teri:3.ls .
3.
? he clir:--.8.te wo1..D.d nc,t be c.ttractt~re becaus e of rio·~sJ l a ~·C.::
st r i.fe , etc .
5.
It is too h8.:rd to 38t goods in and o·,,t t)2-c 0.use of tr,~ff'::.c
c ongesti_on .
6.
r..ri..n:J.
0
c entr8.l to a 1r2 .rket fer the proQuct .
costs are too ~j_gh ana. 1 2.r ge enough arc.-·.f3 \·tO"l.Jld r~0i.·, : .:::
a Yo.ilnb1e . . (IIe s a i_d t h:J.t Gl~ :ts not inte.res t.~C. ir-.. c o~ t :':'. .r_:;c- - t~y;~
indust. rJ'" wJ:d.ch i s ca rr:i.:::d on in the c:ro-.:.. :~e d cou.:ntr~_.. of ~ ·c:;.):·.. ~1. )
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J,!:r . F·hilli1_"")pe sc.1,:i.d tr~at, GE ·ha d a 30 -y2ar-ol.C! :;1lc.nt in Q. Gb et tc1
area ,..r ·tich it iv·as r ecen~:.ly fo:i.---ced to scJ..l "'oc:::a·J.se of' tt:~e u:.r:-e.r:--.~i~11:~:-8;;·.:..3
~nc1 h:?.. :rdch i ps , He would not n:·ui:ie the: loc f.i 1::.:Lon , · End r,old ;::,:~:ea t·.o.:.'
1{enned~/ t.b a t he 1.-.1oulcl t ell. hir!l -::he 1 or.;(1..-tio~1 in pri ve te. Ee 3~·.. j_~
tba t sc:nc of' the t h in_ss . ,.,;l:i.c}1 :1 ~H1 h2.y.,y,2 nE: d to the pJ.2:-r~~ \:e~·e \i ·:·:.:.-y
ur:u.smJ_ and thRt }J e had su.r:·ert:d TJerso::a l unple£::.s.: ~.:1 t, e _v~pe:ci e ;~ e: ~. . ::
·w hen visiting t he p1ant .
/tl th ouch Se~at,or :{enned;/ c o::i ..~ '::ndec1 t11n t t ·l1·2 r ~~ wcuJ_d t ,-:-~ a n
unta.pped rna rkc.:~ for \.TO:cke rs B.!~d cooC. s .in Stlci1 an 2..r~~.:::. -~ t te C~n:·-:.:i. l"'J::.:~ r:.
o f GE s e c r:1cd unconvinc ed and ~..ro ~1ld r\ot e-c;r2e t!:2.t 1:.is C·::.:-:--~·1_)a.~1:.· ·
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ml gh t be interest ed in locat inc in such an area .
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}-7.c'.\.?J:l·:GS :S:220?2 T::..:; SU~:8C:.: .J:'='.!:';:';::':: on K{ECU?IVE PEORG.-~IIZATIO:,J
OF '.!'EE sr:=·~.\'I'~ c c:.:-=:TI':Z::: o~r GO'JERI'J-ZJW OP'.a.::R6.TIOHS
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Afternoon Session :
-~
BRUC6 P. F.AYDEH; Vice ?:resident; ::ort 6ase 2.nd Real Estate J?epart.ment,
i Colli'1ecticut Gene:r3.l Life Insurance Company
Mr. Hayden defined the c onditi on.sunder which life ·insurance corporations
_and other bus inesses could increase their participation in the urban
r edevelop:nent process. The ex.te~1sion of Gove r!l.ment financial assistance
programs to profit ventures as. well as nonprofit organi zations and the
effective exercise of t h e planning and coordinating function on the part
of Gover.ruaent were des cribed as necessarJ to the achieve;:;ient of greater
business involvement in t h e reouildir..g of the cities. The main poim;s
·rais e d in his testiraony and during the questioning period were the follo wing :
1
l.
The Weakne s s of :n orrnrofi t Ventures
Hr. Hayden testified that d eveloprnent efforts unde rtaken by nonprofit
conc erns u sually r esu.l t in f a ilure due to P. J a ck of knowledg e and experi ence . The tendency to l init Gover Th7ent fi"'anc i a l support to nonprofit
organizati ons is thus m1desirable .
2.
The Gathering of Housing Costs
}Ir. Hayden stressed the importance of r ~.?~e?in~ the divergence between
housing construction costs and gene:r2.l price levels which force s builders
to t olerate lmr quality work . The contimstion of r eli ance upon ea s i er
fina ncing arrangements will p revent a soluti on of t he costs probl em .
3.
The Or ganization of tl"e Attack uuo!1 Urron Problems
Mr. Hayden sta t ed t hat an agency should b e c reated with the r espons ibility
for mak:Lng a tota l systems approach to tbe problems of urban housing.
Such an agency could b e orga nize d along the lines of either NASA or COl-.SAT .
JAMES W~ ROUSE; President; The Rouse Company
irr. Rouse descri bed the steps taken to plan and f inance the Col umbia project
which involves the de velopment of an entire new city within the next l 2
years in an_area midway b etween Washj_p.gton and Bal t imcre . Tbe expe rience
of t he Rouse Corpor ation and the Co;:1ne cticut Gener"--1 Life Insurance Ccnpany
with r egard to Columbia can b e applied to the reconstruction of t he c entral
c ities ac cording to 1-il' · Rouse. The ma j_n points raised i n hi s testimony
and during the questioning period were the following:
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The Need for Concentratic~ of Financial Resources upon a Single City
Mr. Rouse suggested that all urban ·renewal and -demonstration city funds
should be utili zed to accomplish the total and successful renewal of a
single l arge American city. The country needs to be convinced that
urban problems are capable of solution.
2,
The Place of Profit Consicerations in Urban Redevelopment.
Mr. Rouse declare d that the construction of new cities and the reconstruction of old ones so that the real needs of their people are satisfied
will b e a profitable enterprise. Once the market success of well -planned
development projects is established, the solution of the nation's urban
problems will be possible.
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Afternoon S e ssion :
December
6, 1966
WITIIESS :
Lee Rain1,,;c1ter, Pro fessor of Sociology and /mthrop 0 log y,
W2.shinc_:ton University ( St. Louis)
SUBJEC'l' :
Poverty and Deprivation in the Crisis of the A."llericDn City
Professor F:ainw':iter told the Subcommittee that until we make really
s i gnificant head~a y in solving the poverty problem ( and thereby also
the probl en;s of race and ~thnicity ) it will prove irr.pos s:i.ble to plan
urba n enviromr.ents in a r 2.tional wa y, in a way tha t is useful and
sa ti sfyins to urb3n populations .
He sta rted by desc._:ribing one particular lowe r c l ass Nc t:: ro crn:unun ity
wh ich , with a d ozen colleaz;ues , he studied int e nsively for th e pa st
3 y ears . Thi s i s the Pruitt-Igoe Housins Proj ect in St . Louis.
Built in 1954 , th e project was th e fir st hi gh-rise public h ous:i.ns
in th e ci ty . It cons ist s of 33 e leve n story sla b sha p e ~ building s
f csigned to provide housin~ for about 2,80 0 families . At present,
it houses about 10,000 t~e 0 r oe s in 2 , 000 }1ouseholds . i·Thnt s t.a rtr~ d
out H S a pYcced:::nt-o:r·eak in3: pro jec t to i: np r ove the live s o:; the
poor in St . Louis , a proj e ct ha il.ea n ot only by the loca l ne~spepe rs
b ut by Arc r::itec turo.J. Fon.::,(, h2s b e c oue an em'oarrassmen!.; to a ll c on c erned . In th e l ast f e ~ y ea rs , t he proj ec t h as a t all ti1nes ha d a
va c a ncy r a te of ove r 20 p e rc ent . News of crime and accident s in
the proj ect nakes a r e 6 tLl r, r appe2.n:1.11c e i!1 the ne·.1spa pers , e.nd the
words Pruj_tt -I g oe ha ve b eco:;1e a househ old term for t he worst in
ghet t o li ving in loue r class Ne.:;ro h on,es , as we ll as in the larr;e r
c orn.mun i ty .
Prui t t-I goe , :i.n Professor Rai:l'.,8.ter ' s opinion , CO!1denses j_nto one
57-acre t:r-a ct a ll of th e probl e::;s a nd diffinilties that ari se frorn
r ace and pove rty, a. nd al l of the impotence , indiffere r,ce , 8.n:l host ility
with whi.cl: our society has so f a r deal t with th es e problems . Processe3
that are srn-,,e tines beneo. th the surfa ce · i n l ess virnle r.t lowe r class
slums arc r e2 dily appB-rent i n Pru i. tt-I 6 oe . Because PruJtt - I g oe exists
as one k ind of Fe de~ n l Gove r n~e n t r esponse to the probl ems of pove rty ,
t he f a il u r0 o f that r espor,se ,,,ill pert2.ps be of pa. rticuJ. ;:;,r int. ere3t
to the Co1:u:dttc e , Professor nai ff,·T~tter s a id .
P1·ofcssor Ra inwa t e r brouz.)1'..; out:, tl-:e follo·.1i .n 6 facts in. r eca rd to
. Prui .J~ t-I g o 2 :
1.
All tr~e wh i te s h e.v e !,:ov e c1
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and th e po p'Jla t io;-1 is no·,i a ll I:egro .
2.
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5.
'I'e nents , tl-,e:r0fore ,
Frosram .
h:;.,..-2 ~
t h ings out of wi ndo·.,rs., hur~:i :1;
j2.,J.ndiced Yiew of t he :publ i c Hous i ng
P1~ofe3s or Raj_1!-,ia.t e2."" 22. id tfl~.: - i1f2 r1ust s tart with a.n unde rst2.ndi r.g
c f ',!hy l c ·, rer c le.s::; ::. i.r'e i s tn5s '...'e.Y . He beli eve s the lower cla s ses
ac t - this wa y b 2cD.us e ci:f L ro probl ems :
1.
! ~a bil i t y t o find ~ork and adequate pay .
2.
Beca u s e of lc1 ck of fi n?. .!1c e s , tr:ey live a mong other indivic.;.~el s
simi l a rly s i tus. ted , ind i v :Ld uci.l s wh o , t he expe rien c e of their
daily live s t es che s t hem, are da nc;erous , difficuJ_t , out to
e x pl o i t or hurt t hem i n p e tty or si g n i f ica nt w2.y s . And the y
l earn t hat in t h e ir c or:-;:iuniti es the? c a n expect bcil y p oor ai'1d
i n fe r ior se r v i ce and protect i on f r om such i nst i t u tions as tte
p ol ic e , t h e CO\u-·::.s , t he s chool s , the s a nita tion depa rtment , t h e
l andlords and tr:c rne r chc1n'.:, s .
Professor R2.i,1wG t e r c o,1tem1ed tl1a t effort s to sol ve t he . gen eral
proble ms of u rbc1n rr.a,;'?.;cment will forc ·, e r be f rus trated , o r a t l east
much , m1,;.ch rr.ore c os t l y without 8 solut i on to the p :: :oblcrn of p overty ,
bot h u :c'c6.n and r ul'al .
He p:t :iposc j c hannel i ng nation'3. l incc;:;c ( po.rt i.cul arl y the yearl y
i ncrem2nt in nntion':l.l j ncor,1e ) to f am ilies in the lm.rer thirty to
f or t y p e r cent, of the popula tion so tha t a fami l y i :icomc: f l oor i s
estab lishe d which i s n ot too far b e l ow the med i a n i n come for
Americ a n families e.s a ,,,hole .
Professo r Ra i nwa te r t h inks that there are 1::asic 8lly t ·,,o stra.tc 6 i es
i mpl i cit in the va r i ous p roBra~s and s ugges ted pla ns for d oing
some thi ns about pove rty . One , by far t he most entrenched a. t pre sent 2
might b e c a lled the ser-,,ic e s strat::bY , an d the ot.h er the inco1::e
stra t e 0 y .
In hi s opinion , t he p r oblem with the services appr oach is t h a t to
a. conside rable extent j_t c a. n:ies t he l atent assu..r.iption either t hat
the p oor a r e p ennan cn tly p oor and th e refore must h a ve spec ia l
s e rvic es , or tha t th e p oor c a n be chanzed (by l ea r ning productive
skill s , b y l earning how to u se the ir r,,oney more wi sely, by developinc;
bette r at ti tudcs , etc . ) whHe the y are s t ill poor and that once
t h ey ha ve c hs~ged the:{ will th e n b e abl e to c1ccor.1:pli s h in ,:e.ys t hat
wiJ.l do a:.ra y with their poverty .
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A s econd pro':Jle:;; , ::e 132.icl , witr: t !~e s ervices a ppro::1 cl1 is that the
priori ty of ne~ c1s of tte pvOl' is c: s. tei:;Ol'ice.lly est.2.blished when the
service pro6 :car.:s a re set u~ .
An ex::rn,ple he descrj.bed j s tha t ti-:e Federal puoli c housi ng program
prov ides 2. service to eac:1 !",cus e;10ld in Pruitt -I goe in the fo rm of
a subs i dized a p?. rtr::ent t.}·.~t c c sts ab out $545 a year . This amotLrits to
a fifth of t he ~ean f auily incoxe of the tena nts in the project .
It is v e ry l i1,el y t !'.!3.t fr c::·:; t:'1e point of vie'.r of the needs of n,any
of the f amil ies who live in Pruitt-Igoe t ha t $5!f5 could be put to
much b etter u se .
The Professor said the.t those ec:ono:dsts who h ave pursw,~d thi s line
of thinking in studying t~e probl em of pove rty have suggested
the inc ome s t r<ltegy ree;ui res t:-iree ele~iic: nts :
A. An agg r e ga tio~a l a pproJch --~hich i nvolves gene r a l economi c
plan ni ng directed at the l:l<:tintene.nce of tibht full e mployraent with
une;r,ployme,1t r ate ( t ha t is , t aking into account l abor force
drop outs ) t hat i s ext::::::l:1e ly lo;,.r. Such an employment rate has
cha rc:cteri zej ~.h is co ..mt ry only ourinc the h e i gh t of World Wa r II .
a r eal
B. A structura l 2. p proac~- -'.!hich cOr:ipens2tes the tende ~1cy for une;r,pl oy ment sncng lo:.' st:illed \.:02·}~ers to r :2:r,3 in at relativ ely high
l evels eve n u1:de r co:1d i tions of ti 2;ot ; ful l emploY7",ent . Such an
approach ·,.;o:Jld r eQuire thst f e d'2:c2.l ~ro 6 r a ms t o b2·inz; nbo:.it. full
e mploy1:-ient be ti ed to s u9.rc:ntee s of 12-bor f orce entry j obs f o r
unskille d men , e.P..d r;u2rn nt e :=& of t n:Ji n i n8 c:-i the j ob to upJ;r8. de
th ose skill s . In t h i s c onte:·~t , tha t is tii;ht , full e,11pl oy:r.c,r'.:.
at all s1(ill l e vels ) a hi gh nin:i.mum ,raz;e woul d a l so be ne cessa ry
and would not };~ve the nega tive effe ct of ha stening th e r e pla ce;:ie::1t
o f me n by rr,o.c11i nes .
C. An inc o~ne rr.3 inten,,:1ce p roG1·2.m- -·,,}1ich fills in the i ncome ga p not
touc h e d by th e tight full e mpl o,y-;r:e :1t pro3 r o.1:is . The i nc o,ne m:'l int enc1. nce progr:':rn ,:oul d b e r ecpired f or families ,:i th dis 2. bled or
rio m3le h ead and w~e re the wife should not ~ork b e ca us e of the
ages or m mj )e r of th e child ren . Such a pro;;rcun could t a ~e tte
fo rm o f f 2r:::i.l y a ll o·.:e nc (~s , a ne 0 cJ 't:fv
.e-S:nc~_,2.x , or c !i ann1.1e .L
r eorc.2.n i za ti on of t:-1e Gove n E1e n::. ' s c l.11T e :1t inc o;:1e r::':.: in'.:.e n2. i1ce
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n ow 5n exi s t ence .
Mr. Kot l e r d e sc ·rib ed t o t h e S1..tbccr!,;;1itte e tt e 2cti viti es 2 2·,d 2cco::,pli s tme ;i.ts o f t.:,e 2:cco p ro j e ct j.n Co j_l1.::,1.,u s , Oh io . He [; 2 ic1. tha t th e s ucce3s
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pri ~:c i-~2..l asent o f c :~e.n~·:,e tc1 ·r·2t;L:..:. .i.C:. our Sl:..,111~s i n to a l ege.l co:r_;-n1..1-nity
o f c,Llture J freec. ,,~ _. 2:1('. ~:!"0spe1,i·:y . 'i';;e nei 6 hborhood mus t becC-r:ie
a le~2 l cc~::nur1i ~ ~: Oi-. s~1.f' :-lelp e!1d sel.f' - 50,._.rer:iing de cisions r..r i th
the suffic j_ e:-it c2 pc, :::i.ty '_;o rele te '.:.o c t o.e:c organjza::.ions ) publi c
a~d private ) for t~e !~sourc es and tecbnicel assistance required to
b uild a bett er city .
<;._
t-'. r . Kotler made the ::'ollc·.-1in.::; reco:rJnen.c1a ti o:is :
1.
'J:he Federe.l
2.
The i ndependent nei &;hbod:ood corpora tions of a c ity should become
d ele[;ate agencies of the existing Corr::nunity Action 0rc;a niza tion .
3.
The neit';'hborrwoc1 corporations wouJ.d use the Federal f t.mds to s ub contr2. ct t o p1'i v21te industry to rebuild the c ity .
4.
An P.lte r no.tive is fo :r t:-1e neiGhbor~1cod corporst ion to beccrr;e a
d elegate a 6 ency o:f the l oc2.l ho . J.s ins a Ltthority .
Goverffir:ent ce.n assist the forrne. t i on of ne i ghbor}1ood
corpo r at i ons by fundin ['; thei r a d;i;in i s trati ve costs and p ro~r ar.'!
ope r at i ons .
1
WI 'I'NESS :
'\-1:Lll i mn A . Doebele ) ,Jr . 1 Profe ssor of City and Reciona l
I~anning ) Assoc i at e Dee n for Developme nt ) The Giac1uate
School o f Desii:;n) Ear··13. rc1 University) Ce r;,bric1L~e) I-1:;.ssach:...lset ts .
Professor Doeo e l e rr:3. de the follo wi nc; rec o,::rc1e nds.tions :
1. ThStt it r equest the S e cre te, ry of the De pa 1·tme nt of H.01..1.s ing and
Urba n De velop~ent to initiate at t he earliest poss ibl e opportun ity }
i n cooperat ion with app ropri a te profe ss i o11a l o rgan i zations and
u nivers it ies ) a c o~r.prehens ive study of rr.a npower resources in the
field of urba n affairs ) r el a tinB t he s ame to t he ne e ds of both
the publi c and pr·i va t e s e ctors J and t he r e quire;;1ent s not only
of ex i stin[; pro 6 r a ms ) but those conte1:1pl a te:d or like ly \-,i thin
t he nex t dec a de .
2. Tha t th e current $500 ) 000 appropri a tion fo r :fello~ships for
gra du':l te study i n cor::m:.m i ty pla nni r:g and nll i e d fi elds ) first
provide d for i n tL e Hou s j_ng Ac t of 19611) o ut not fllnd e d unt il
thi s y ea r ) b e irr.:n'= dj at e l y increa s e d t o at leas t $10 mill.ion
p e r y ea r) a nd e:,:tcnde d to c ove r u r be n s tudies in 1;_s ny fi e ld s
and at ma ny l eve ls of tr2 inine; .
3. Th 2 t sinc e th e ~ os L critica l s h o rta g e of pe rsonn e l is at the
t op pol icy p os i t i ons ) a spec i a l f un d o f $5 mill.i on per year for
5 y e :3. :!."'S be appropi~i a t e c1 for t h e purpose of E.~:'lot j_~~ t h~
este.:)J. j s~r'.:e"'1t , e.-S s e l e c te d u~:i. v ers i t:i e s, of t::ro--_r 2 :-:1s cl es_i r=: ~cd
-~~-c~t{_;-:;_(;~c·~,~:;_;t~::c~:~~-c;:143.215.248.55 16:57, 29 December 2017 (EST):~'.143.215.248.55 16:57, 29 December 2017 (EST)c~~
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an ~:J_ .:., . -~.- of t:~e r:ctv2:~,:.:eG. ~-:.:.:::: ~::·:·:==_---:-, ::-:~·e>_::r2 ~.s of leedi~~ school s of
b :.t:=:: ::::. ::~s 2~ct-;:i:1is t:.·?143.215.248.55.G::--:_! •.-=: --:!2·:.. :-i~1 }i:·c:[; rc.:--:s ._of t}1e ~"i'Jc,:.1rc'.-,r ~·?ilson
Sc }-_c·.:-l -st Prf1!.c etc.:1 7..!~i';/ ers :L:.:: ) t: _:; i;eir,1s.n J?ellows}1ips , e.!1d the
n eu }:c :1~1ec1~,i- Ins t:i. tu~e e.t Hct1~ve, rd . ,.;. _
l~·: Th-?.. t. a1:. equive.l er!~ s;J;·1 Ce cr;~~·-J p:::.~i =?. t~d for the pu.rpose of doi~g
r ese9 :;-·cli and es ta'8l:-..2::-,icl=:; p ilot v2·0,;:ra;n s relat ing to th e tr2. i nin,-:=;
of intabitents of slar a r e ~3 ~o p9~ticip~te effectivel y i n the actu9 l
r e~_u~_ld ing o! t}1et r o~.r~, en . .ti r o!·:..:·;;er.t .
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5.
'.i'ha.t 2 su:,1 of n ot l ess than ~;20 r::illion per year be rr,ade available
~----- --to -an -·approprirrte "C~:~3rtn:ei.i:, c1- e. ns.tion~l cc~1nc il, for · di strib1..1-- -tion to univers ities and other r esea rc h organizations for s tud ies to
increase as r a pidly as possible our bas ic 1u1derstanding of the
na ture of u rba!1i zat:i.on and nrban a r eas .
6 . Tha t a separate
sur:i of not l ess than $250 milli on per yea r be este.bli s :-.ed
under the adrninist r2. t.ion of cne or several Fede r a l De pa rtments f or the .
c onstructio~ of l 2r~e - scu l e e xperimenta l u rb~n enviror~:ents, to t est
and ev2.l.ue.te , 1..:0: :1,; th2 ;ne~.h ods of the social and m,tura l sdences,
tbE:__effects o[.:_-u--::::·Lc1e- r2ns_e 0~ poss ibi.lH:i.es \,h ich are nm, technolo;:-:ica lly
feasibl e but cannot be bailt beca use of fi nancial , l c Ga l or other
constraints .
In reply to a c_;ues t,ion by Sen3.tor Ken ne c.y , tr.2 Professo r s2.id that be \, Oltl d
put a priorU:,y on his firs t r eco:r::1;enc12 tion , the second sug[;est ion next ,
a1fd tben m Enoer fi vc 2s third priori t:,
S er..!?,tor Kennedy ,:as very i rnpre::,sec1 ·
with _the p1·o~e.ss or ' s r ecomrrienc1a tions to get nore informa tion e.bout urc a n
enviromaents·, since this j_s one cf the r easons the p roblems }~a.ve not bee :-1
solve d at thi s time .
1 •
1
Ma in questions r a ised by Sena tors Ribicoff and Kennedy ( the only n:embers
present ):
1.
Pru:i.tt-I g oe p~blic housing project j_n St . Louis .
S e na tor Ribj coff aske d Profess or Ea. inwa ter ,1hether there were any
a dvant2,ges at e.11 to living in Pruitt -Igoe , an d the Profess or r epl ied
that the t ena?.1ts were pl eas e d wi "'ch U1e interiors of tr,e ape.rtments ,
but tha t the world tha t be s gro'.m up arot~?.1c1 the project and 'Id thin
i ts bounda ries is \..'h2tt e;ives th e project j_t s ba d name .
Ribicoff \o:as inte r c:-:;ted in whether thi s p r oject sheds e. ny li ght on
public h ous j_ng in 0 e neral. Th e Professor s a id that it s:!10·,:s that
public hous ing s hould b e buHt a t s ca tt ered s it es m i d in s nm l l settl e1,:ents .
Sen':l ·i;o:· ?j_oi~:off b:cc,<Jch e d th'?. possH,i :i. j ty t Yat p1..1bJ. i c }1ousi n c; mo:-i e v
,nj 3 flc -c :2 1ju ~ t o 1:~~ -:.e:: r us e by l e~. L:r: ::: £::l e(_ p0: r so~1 proc:.11·2 h j. s c ·.,·r1
p::i ·.;2. ~.£.:: i:.~-u:::i:1J ·,,_~~ L 2.ri ec~:.liv:1le~1:. 2l -iC'- ~ ~1t. e2.2f". 1~0:1:r: ( 2.":;c.-J. 1:- ~-:)J ) .
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A propc,seJ. T.,=c.de at a pre,rjous session -,.,as ol so disct:.ssec1 . Tt.2..t
propos0 l #'"·=-c)~_J..d be to h'3 ve ~:-i urb8.1: ho;r1estead similar to t !1e ol d
Homes ·cead .'\ ::: t . Profes sor F:2 in°,:=-!ter also pointed 01..:t tha t Den:~_e rk
u ses c oop2::::::.t i vcs and nct~l)rofi t c ooper2.t i ves to provide lo·,r- incoa,e
h ousir:'.i._; ty givin[!; the o·,.,:1e:c a sutsidy to rent up to 20 pe rc ent
of h is buiJ_din.3 to lmr- i,1co,r::: fa1n.ilies ( rent subs i dies ). Profess or
Ra i rn:at e Y told Ser;::-1tcr :;ibicoff that he c:efini tely would substitute
s ometh j_n; else fer the p:r~sent puoljc tous ing prog re.m a lth oue;h
t he program wor~s b etter j_n so1,:e places t q_2. n in others .
3.
Coope r a ti,:-n b2. t112en EUD and other agencies in Pruitt - I g oe .
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Profesr,o r Ra i mi2.te r told the Subc orr2·.1ittee that th ere have bee n
many effort s to coordin,,'..te act i vi tics in this project by HUD
and the Labor Depa rtment; but they have neve r rea lly gotten off
the ground . He s a id t h2:r.·e is not a treme,1dous amount of coordination .
In 1961 , e Conce rt ed Proc;rams Se n ' ices ,,as begun; but wa s not very
su<'.:"c ess flLl .
4.
Role of th e Univars ities .
Professor Ra.i!1W"te r ; in r eply to Sen2. tor Ri bicoff; s a i d tha t h e
did not thi nk that a Uni\·ers ity c ould u se th e money that is b eing
spent on Prui t t-Ic:;oe anc1 do a better job tha n the Government is do j_nc;
n c·,r . He s:1.id the.t his g roup 2 re n ot pra ctioners . He thinks th e
r e a l prooJ.cm in public hcus j_ne.; is political . Whethe r the country
i s ,-, ill in;; to do a bet,.:.e r j ob . lie thin:(s tbe role of the u niversity
i s to c12velop p:::oz;:ce~ns f or t he yotmc3 p e·opl e anc1 to try and unck r s t and
the co,~i:11uni ty .
5.
Hi gher inco1r e s - key to
1
tn~
p:co"blem .
In Profes sor Ra inwater ' s opinion ; the r cc,l k ey to url:a n s l ums i s t o
provide p e opl e ;Ii th an adequ3te inc o,.~e . He thin ks this ha s
p riority ove r hous ins a nd everyth i ng else . The solutio:-1 to the
protle:n of ina c:equ,::te i nco:ne would simplify a ll the ot!1er p ro1.Jlc~ns .
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TI-i::E i:JE\-7 YORK THlES - Decemb er . 1, 1 966
V1 LKINS DEPL RES /}~r.??.~~r~~
AYUR- Af ]DCUT[[ '· '/
•
Tells S0nators Such Savings Ji
Would Be 'Criminal'
Sprci al to The :-;c ~ Tor~ Times
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WASHINGTON,
1\ov.
30 (, .
· -Roy 'W ilkins asserted befo re I:··,\,, : '. •
a Senate subcommittee toda y (i.,.ij,: L
that it would be "crimin al" fo r \ \'., ~- ' .';
either Congress or the Admin·- ·. ·, . ,. · .I
-, . . -·
is tration to cut back budget ., .
.· -·- ·. , . .::,,
expenditures on social a nd ur-1\
· ban programs.
.
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The executiYe dire ctor of th e . •
·, (
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N ~tional Association · for ti1c (
~ft fl~·,,·· '·
/,./:
~
Aa\'ancement of Colored Pcoplc jt
\ t /A ,, :·,
m a de this pomt a day a lter L-·---- ·-·'--' "---~·-· -'~•-'·· Uil lt"rl ?re- ;:;, Intr mat1ot1J.! T cl e,1hnrn." j
President J ohnson a nnounced,
a t a news conferen ce in Texas, H an-,Y Go l<lcn, left , til e wri te r, and R oy W il k ins, cw cutiYe
th a t he was canceling or de- dirqctor o ' the , ;:i t iou :i l AssociaJion for t ie A d\·:rnceferring S5.3-billion worth of m ent of Colo r c<I Peo:ile, t est.if~·in ;;· yesterd a y a t h ea r in~
· Federal prog rams in tl1e cur-!
rent fi sca l yea r. .
I of :t ~c11ate sub(•.nm m it t-ce on pr o ilcm;; of A mer ican citirs.
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The Pres ident: in~is ted Urn t J· ··
J·
none of the c.uts would ",-;h0r t-·s la nli a l cw·c for Neg ro un - ' tions .ire so cJ0sirahle th:tt he '
ch3n ge the young, or tl1e·n ccdy ,:ci_11p loymC'nt. "
_
'. wants in on them," he said.
I
_he iH or th e ol~." Sources here, ! "Un fort u n
,~cl .~·, " he, w0nL en .! Ju dge Ed wa rds s tru ck a r e- :
-?nf1rmcd t ~da). _th a t . tl; e C'Ub /the ad m1'.1 1st1_~ t1on o~ . F cdcral jsponsi ve cho rd in the .subco m - 1
\\ ould not I cq u n_e el1m,n a t1on ,111,rnpowc1 dcvdopmcn c .ind cm - mittce when he c::i.lled foi· mo re
o.f key Grea t S0c cty prog ra ms ploymcn t prog rams '_'has often 1and better -trai ned· policcmPn in :
but would del ay th e _ award /bccnn1 a z·k cd by r,u tn gh t r:1,;1a.l 1ur!Jan a reas a nd SU""es tcd es - I
of !Some grant~ and re:q_u1roc <10l11e ,dis\nmin atz~n ~ nd b:i,: ,~r~c:on- ltab lishm ent of a na tii na l police !
belt-t1ght,cm:1 0 a~ . we1l. .
· !rcn cd, . ste1e~ty~cd i~e.i:-; of academy s imila r to the service ,
Mr. V\ ilkms said a fte 1 t he 1wha t Jobs _ N cg1ocs can a nd institut ions at Wes t Point a d /
hearmg th a t although .. he was j"hould ho la. W 1en colored ap - Annapoli s.
n .
dis turbed by the poss10le con- 1phcan ts have been accepted :
.
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sequ ences of some of the cut~- 1they ha ve often_ found l hem -1 T ~,e ~ub<;o'.n.m ittee cha_i rman_,
he did nd't specify thcm-he 1selvcs bemg t ram ccl · for blue- Scn,tt~1. Aoi anam -~: R1bicoff,
ind intend ed his rem a rks la r ge-:collar. service employm<'nt. fre - ,Demoo;t of Connec ci cut, called
lv as a "warn in "' t o . the n w qu0n tl y in dving industri es."
for v ascly imp roYed police p_roCongress," which, he feared , The three other witnesscs 1tcction 1,-:,st. A~gust fo llo,w1ng,
m igh t inte r p ret Mr. J ohnson ·s; were Harr y Golden, author anct 1th!_paneJ 5 fi r_s c round of nea r- :
a ction as a ma nd a t e" to be " in publisher of The .Carnlin rt Is- !m,,,, on ci ty p ioblems.
0
, m al.;:ing fmt hc r slas hes.
rac litc ; D1·. Rohc,·t C"lcs. Har- I _Dr. Col_es, a · ch ild psyc hia- ;
T he Neg ro le.adc r w:i.s one o( 'l va.l'd re.~ea rc h psych iatris t. and 1t1} st , revi ewed his expcne nce ,
fou r wi tne,;,;cs wh o appearc<l br- .Jud ge Gcor;::e Edwards of l hejw1th poor ch1l?rcn and their ,· :
fo re heari no· of the . Senate ' U m ted States Court of Appeals p:'lrents m SouLnern to\~715 and,
Gover n ment O Operations s ub- Ifo r th e Six th Ci1·cui t .
Nor th ern ghettos a nd said t hat 1:
com mittee on urban problems.
Mr. Golderi proposed that the , m many · cases he ha d fou nd 1,
In other points, he :
·
Nf'gro be g iven a 10-year, Sl00- I"strength" ,rnd " vitality '., de - ;
C:: Describ ed the "black power" billion
"indemni ty"-in
the lspite huge obstacles.
m ovemen t of some young Negro form of weliarc, . housing. and
He said, moreover, that he :
a ctiv ists as "t oo da nge rous , too education progr a ms- t o pay fnr had become le. s "eonvincC'd"
amateu r ish , too t ecn-agcrish. his confinement "during the that racial prej udic-e "is Lhe de . t oo much li ke a stud ent p ra nk,' greatest wealth -prod icing pe- cisiYe issue confronting· our
· adding : "It isn 't as bad as i1 r iod in the history of-the world." citiP:'i ."
sou nds, but it's misc hievous..
The Neg ro 's struggle for jus- White;; and Neg roes, he said , ,
. C:Ch arged tha t Federal Job- tice, he said, "ha: no t been to share the same basic fears of t
tra ining programs :'la u in some1a lter a single insti tution. He did un employment, high prices, ill- l
cases h el ped perpetuate racia l'J not wan t to bum the bastille, ness, a:nd the like.
· ,
-=-·discrimina tion.
or get rid of the tax on tea, nor "There is nothing · in the ;
· "Existing Government pro-:did he demand a new parlia- minds of any group of Ameri - i
. gr~ms, " llfr. \Vilkins said in a lrncnt. or a new Constitution ."
cans." he concluded, "thrtt nee-;
~ . , statement, ' 'ha ve fa llen tar! '. ·'V\iha t he ha,; been tellin;; us cessarily compels our present j
· · shor t of prov iui:ng a ny su b- Iis_ that the American institu- !problcms to continue."
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THE WASHINGTON POST - 11- 30-66
By Andrew J . Glass
\Vashi:anon Post Staff Writer
..... .
Sen. Abraham A. Ribicoff capacity as chairman of the
(D-Conn.) yesterday disclosed Executive Reorgan ization subthat he intends to subm it a committee of the Senate Govbroad legislative package t o ernment Operations 'Comthe new Congr ess dealing with mittee.
what he called "the problems Sen. Robe1-t F . Kennedy (D·o f rebuilding urban America." N.Y.) is expected t o attend the
" We're off on our own," t he session .
Senator said in an interview. The Ribicoff panel held
He thus made it clear that he three weeks of hearings last
plans to champion the cause summer on "the crisis· in the
of t he cities on Capiitol Hill cities." They produced several
nex;t year whether or not he abrasive encounters between
receives backing fro m the Kennedy and witnesses, who
Johns·on Administration.
wer e drawn mainly from men
"One of t he great ·prob- holding elective or appointive
IT ems," Ribicoff went on, "is posts.
the tendency of the Execu tive The current hearing list, rebranch to r un t he whole leased for · publication today,
leans heavily toward non-govshow."
While Ribicoff, a former ernmental witnesses. They
Cabinet member' in the Ken- come from such diverse fields
nedy Administration, did n ot as private finance .and psysay \SO, it was nevertheless un- chiatry.
derstood that the 'W hite House Tuesday's w·1nesses will be
has offered him virtually no David Rockefe er, president
support for his urban legisla- of New York's Chase Mantive drive.
hatt:an Bank, and Richard
3 Weeks of Hearings
Scammon, vice president of
The Ribicoff proposals will the Governmental Affairs Inbe shaped, in large measur e, &titute and a former director
through ,a series of public of the Census Bureau.
hearings encompassing all The hearings will conclude
phases of urban life that will Dec. 15 with testimony from
begin on Tuesday and con- the Rev. Dr. M-artin LutJ1er
tinue for _three weeks.
Kin.g Jr., president of the
Nearly 50 witnesses will ap- Southern Christian Leaderpear before Ribicoff in the ship Conference. Ribicoff said
Senate Caucus room-and on this will mark the first tim~
television. The hearings prom- that Dr. King has ever testiise to serve as the sole legis- fied before a congressional
lative -a ctivity of any conse- group.
quence ito · occur 'before the Virtually the entire roster
new Congress convenes next of the Nation's Negro leaders
January.
also will appear before the
Nearly 50 witnesses wm ap- panel. They include Roy Wilpear before Ribicoff in his kins, executive director of the
_ _ __ __ __ _ __ __ National Association for the
· Advancement of Colored Peoples; A. Philip Randolph, president of the · Brotherhood of
Sleeping Car Porters, AF LCIO; Floyd McKissick, national director of the Congress of
Racial Equality, and Whitney
M. Young Jr., executive director of the Urban League.
Other leading witnesses at
the hearings include Walter
Reuther, president of the
United Auto Workers, "AFLCIO, -and McGeorge Bundy,
president of the Ford Foundation ,and a former Special Assistant to President Johnson.
= ==-- - - - - ·- --·-- - -
�THE I\lEW YORK TI.MES - November 27, l 966
oi rntcrc~t the White House ap parcr,tly put it aside. R epresentative Henry S. Reuss, Democrat of Wisconsin, has also
, suggested it ln the House.
Mr. Goodell said h!s pl an dit.
fered from Mr. Heller's in makRep . Good ell Asks All otting ing a specific allotment o! tax
of 3 % of Income Tax
receipts to local communities.
The plan calls for. distributing
·
50 ner· cent of the f unds' for
WASI~N~TON, Nov. . 26 stat~ purposes, with 45 per cent
. (AP) - -- House Republican to be r edistributed by the states
leader has a!ready draft;d _ a to iocal governments, a..-1.d lS per
plan for sharmg Federal r.axes cent t o strengthen the executive
with st~te an_d loca,l govern- and management fWJ.ctions of
ments tnat will be a come stone of Republican policy in st ates.
•
_
,
the next Congress.
The stace _and 10cal . gove:n·
The plan calls for turning mcnts would nave full discretion
back 3 p er cent of Federal in- ?Ver how the money was used,
come tax receipts to states and out each: state would ?e required
localities to use as t hey see fit. to submit its pl n for allocatmg
The amount would rise gradu- ~he ~10_ney and :make an annual
r eport on how it was spent.
ally to 5 p er cent.
Offered by Representative
Treasury Post Planned
Charles E . Goode:!, Repub lican The office or administrator of
?! upstate New York, the plan general aid would .be established
1s the fi rst concr~tc proposal by in the T reasury Deparbnent to
the House Republican leadership assume Federal -esponsibilities
since the Republican election u..~der the plan. •
trmmphs of Nov. 8.
·
,
"This proposal seeks to pro- . M1:, G_oo!ell s plan calls :for ,
vlde for the great public needs d1str1but!n 0 90 per cent _of the ,
of the 1960's a nd l970'.'l by Federal mcome tax dlstr1but1on J
equipping state and local gov- to the state;; on a b':s1s of popernments to meet these needs " ulat1on. The rema mmg ;o per 1
vrr. Goodell aid. "It 1s an a'i- cent would be used to raise the .
t ernat ive to the philosophy of per ~ap1ta ,_allotment in the 17 :
the Great Society " he added . poor-est staces.
•
'
.
Using estimated lncome tax
.1'.ot Replacing Anything
payments fo r 1967, Mr. Goodell
Mr. Goodell, chairman of the said that Sl.8-billion would be
Republican Planning and Re- available for distribution. The
search Committee, said in a average basic allocation would
statement
that
tax-sharing be S8.50 per person, with the
would provide needed general equalizing funds raising the
aid funds without reducing poorer states by as much as S6.
state and local governments to Although the. Federal Govern-'
administrative subdivisions of ment would have no control over!
Washington.
how the states and localities
It is not being offered, at u~ed the money, Mr. Goodell
least originally, as a substitute said, such use would have to
for any existing programs, he comply with Federal law, includsaid, although in time ,i t m ay ing the Civil Rights Act ban on ,
permit s ome of them to be cut using money for programs in ;
back.
which there is. racial discrim- :
A tax-sharing plan was pro- ination.
·
posed in 1964 by Walter W. He!- Mr. Goodell v,,ould also require :
!er, then chairman of the a review and possible revision :
President's CoWJ.cil of Economic of the program by Congress
Advisers, but after a brief flurry after four years.
T XSHA I G Lil1
F~ERE G.
�IvJI .4l F8_Il lfi ltfJW IE
fvII !E fiJ. 1 §
o
0
0
is here 1o stay and.' make it a deeent place to
live," Foli:y protested.
i.ubtu·bs '?
The meeting, as often happens in g1.1v-e1-n.
ment, didn't settle anything. It is, however, a
dramatic illustration of tile painful but secret
process now going on inside the White House
as the adm.ini'>i:rat\on prepares for L°ti7.
f:f
.: · .' ' %~iii'-\
.· _/:.,-;- '·-?r·i
SO:ll,E OF THE PARTfOTT'J\:\'TS in that hig,h-
Z
powc•rwl St':S.'i'ion we-re chug--rin<·d t;hat Shul tze
failf'r:I to inclu<k a proposal tackl ing what they
wn sider the h igi,'C'St urban pro'xl<'m of u.il - tm-
em 1,l9yrnent. .Secretary of Lnho.r Willard Wirtz
obsNvN.i testily that t:he prol,l<-m ot t11c ci<t:ics is
c cntl'rcd upon tlw pl igJll o[ tu1e pove ry-{;trickcn
Negro. Ghettos . He pointed oul that the unemp loyment r ate among Negroes is twice that of
whiles, mid stressed he belirves providing jobs
oo m the ghettos is tJ1e key t:o tlw.Jping the cities .
~
i;.;i
z
\
Silould the Ul'h'an N<'g-ro gfhetl:os be r"'bu1Jt or
ti!iould ~hair re::;1dents ibc ::;catlcred t:o the white
R1Ji?"X:'.t f..,~&l 'l1.11c smgglc among high adf?/'-'t/0 .-··: _., :\:: mini::;u·atlon ollidals for an ani' ·
·,·.-J\ '.d swe r to that question has been
i. . : ·.,,,~ / (J. inlcn!;C since a heated a.rgu;'1,-: )l~'-,:,i
mcnt eriuptcd in the White
[ ·' · ...,·,'·':, f ;~ ·; -~ HoLtSe office o£ Joe Cali.fan
many weeks ago.
\ ~ 'i · ' ·-:,-' ·: Bureau of the Buc'.get Dircc1Dr Ch,u·ks Shi1llze set o.fi the
~ - ·- ---...J tense exchange w 1w11 he b{'gan
MEANS
cliscw;s.ing tJ1e urban crisis be-fore nr-;u•Jy a dozen cabinet anrl ::;uh-cabinet
rnrmlx:rs a~semhled bc1H'a th Califano's stark
hl,wk ,ind in-ey a:lr.;trncl pain1'in 6'S. Sh1tltze prescntro a hst of J5 sugg<'!il ions for improving
condituon in the ci ties .
j
llro
111en-Attorney General Nichol-as Katz,:nb'ac:h
and thcn-Assbtant Secret,ary o! Commeroe Eugene Foley (Ka tze nbach is now in tJie State
i:.:l Deparlment, F oley has gone into pl'ivate life)
~ echoed Sec:retary Wirtz. T hey added t:heil· awn
pleas for new progr anis to attr a ct industry and
PRESIDE.1\'T JOill\SON has long btoen roncerned about tl1e problems of the urban centers,
where 70 percent of the population lives, and
h as rejX'atcdly · indicated that city prob~ems ,1i ll
make up a large share of his 1967 legis lative
program. In a d<lition , his inte rc::;t in the citi('S
nm, t crn·tainly krve been reinfo..rc..<>d by llie
warning of this montJ1's eJC'Ction, in which tlie
. GOP di:monstrated impressive gains in_ t11e nol··
m al ly Democratic hig city vore. •
(Although tJ1at same e.lection sePmed to ind:
c~:te a n;lfionul nbn0c---phe•re of entrench ,'1}ei;t
which . for,'shadows difficulty for the admin istration i n Congress i f it:; progrnms for tile cit ies
are deemed t:oo expensive or too visionary).
Witllout much fanf:lre and largcly ,,ithout
p ubhc notliec t11e White House has se t about in
scv0ral ways to work on tJic problems o£ tne
ci ties. Passage la~·t ::;Pason of the Demons trabon
Ci til's Bill, was of coiu-:;e, a small but importa nt
b eginning. A special l~ k foi;ce has been assigned to produce new ideas for tlie cities which
oould be included m adnunistratioo measures.
·
AND THAT CABINET-LEVEL group, which
meets weekly m Califano's office, nets e..s a
watchdog over tlle presently exisitng programs
m an effort ro see tJ1ey are fully ut:i.ful:xl.
Meanwhile, t"ie Justice Depar!:zl".ent is pbnnjng sho1tly to mnduct a landlord-tenant co!"Jr:rOn e official present, however, int ~rjected th a t
c.1ce in the capi tal. The conference will bring
he opposc-<l such eflo11·s to rebuild t!he slums
tugether state and local officials and lawya:s
until conditions WPre improved for the poor, unfrom _across fue country to discus s procedurl'6
ed ucatcrJ Negres of lhe rural soutli. I-Le s aii<l he · which might be adopt ed to protect slum tenants.
prl'fc1TPrl trying to resettle slum jlJcgroes. " H
A major slum probl em is tile failm'e of landyou make tJ1e ui·ban g-h0llo livabl e all you'll
lords to make essentia l repairs upon their
haw i~ the Mississippi Nrgl'O moving North and
dwellings. Tenants, w110 often cannot r ead noI
reducing t.he arc-a to a sltun again ," he said.
write, seldom know the identity of their landlord
"You've got to face the fact that ·he gjhetlx>
an<' hav.c no wey of pi-ess• 1·ing 1'.im Wo action.
job-pro<lucing projects into
•• I
the
ghe ttos .
J(.{:-
�TI-E rIEW YORK TI MES- 11- 30 - 66
CITIES 1i\ YGET
,: ··-u .0,
Q _ n11r1r1 11TG
ID!;
1.1 ,~L1'1
1
.;
R~~ds
l/'1 0/ &--
I
.~hief _Hints Pro~os~l-i'1
_e. to Di vert Highway Funds . .
n;; :\UHJOH- E
HU:\'TEit.
,'. · Sp rc li\l lo Thr New York Times
·•.· WASHINGTON, Nov. · 29~ .
The.· Administration is expected ;
t o ,t.sk Congi·css next year lo j
dea r· the way . for. the ,us e 1 'of
highway flmcts :· to help· : cities
fin ance off-st reet parh:ing..
·• · .
· Strongly backed by Fedci·a l
h·ighway offi<o:i~J~. the, wop_o ·all);
js known to · 1Jc unclc1' sc nous ·
1consideration a t higi1 level:;. · · ·.
l A strong indi cation that the '
IAdm inistration has virtually de -·
cidcd to push · for such . an .
amendment to the Federal High~
,way ·Act, in th<; next Congress
came to day in a ·pccch by f.:c,-;
M. Whitton , the Federal ' Higf1-·
way Administrato1·.
·.
I n a speech to the Americ,tn
A sociation of · State Highway
Officials in Wichita, Kan .; ai1d·
rele ased by his . office here, Mr,
Whitton said : .
. .
I "It is my belief that we will
have to do something to provide
fin a ncial assistance to cities for
off-street parking.'.'
Mr. Whitton did not set a
ta rget date. Nor did he propose i
'any specific· amount of money. :
However, sources close -to , the :
Administration say that- .the ,
p1;oposal i almost C<:?rtain to be :
presented to the Congress con- ,
venini in ' J an uary.
··
·Under the present Federal
hi gh \\'a.~· law. funds cannot be
us<'d for parking faci!lties . . The
bulk of the 1:10ncy is used to
help s tates acq uire rights -ofwa\· a nd onstruct highways. ,
i 1any mcmbe1·s of Congress .
would a lmost certainly oppose
diversion of funds from road building into construction of
parking faci li ties.
This opposition would likely
be particula rl y strong at this
time. for President Johnson last
week ordered a sharp cutback
in the Federal highway program
in an effort to quell inflationary
pressu re in the economy.
The Federa l Government ha d
originally planned to commit
$4-billion to $4.4-billion in highway funds in the present fiscal
year end ing next June 30. This,
has been cut back to $3.3-billion.
I
......,.
This will slow roa dbuilding in [
every state. The grea test im - :
pact will be on the inlcrstat c l
supcrhi;hway system, a H,~00- 1
mile system that is now s llgntly ·j 1
more than half completed.
1
Under the cutback, New York
State's Federal -aid lirnitation
bill will be Sl 71.115,000, of
which just $183.000 has been
placed under contract since last
·June 30. New York's share last
fi scal year was ~210,587,661.
In pushing for authority to
divert funds into off - street
'parking, Federal highway officials argue that it would less
costly in most cases to erect
park ing facilities than to construct new streets.
By removing existing street
parking, they point out, one or
two additional traffic lanes can
be opened to vehicles.
Federal highway_officials arc
also see ,ing other solutions to
·urban traffic problems. One proposal is for what they call
"street stretching."
· In his speech today, ::11r. Whitj ton described "stree t tretch,ino-" as converting existing
1 sidewalks
into vehicle traffic
lanes. Pedestrian walks would
be provided in arcades buiit into
the first floor of buildings.
' 'This obviously is not a chea p
solution to increas ing the traffic capacity a nd safety of
streets," Mr. Whitton said . "But
it certainly is less expensive and
disruptive than removing entire
buildings for new street or free• 1
way constructions.' '
'
�,
THE i'J"EW YOKC TIMES - 11- 30- 66
61/ '.J.:,-f ,,-·
,,__ __
0
_
_
Sen te Panel Endorses Bid
for · eavy Inv stnient
By IWBERT B. SEi.\fPLE Jr.
SpcCJ,11 ·to The 1,:cw Yor · Times
...... .
WASHINGTON,
Nov:
29
- ~po~::,ls aime~t._;,ttr~1;;
h v,;·e su ms oi_J,,r(,va,t<> r.llJ2.! tal
into sl um rehabilitation received
i,f?ong endorsc,nc~~Ltoday as the .
Sc:nate Govc::·nmen t Operations
s ubcom mittee began · a second
r ound ... qfl, ca1:in;;s on what has
be:en _, ;1llcd, . U,e,. ' c_i:isi,( ~n _t]1e .
ci ties..': .·. . , ; .':·· :· ··....i :·;:., · , ._.;~ ·: ~:-11·
Sena'tor\Jacr;b K _J a vit~. 'N°cwf.
Yorl, Republican , ~ subcommi t- ,
tee member, said he was '.'encouraged by 1:ecent reports that
the J ohnson Administration had
such a plan under study.·
Senator Abrnham A. Ribicoff,
t he subcommittee chairman, decla red tha t the task cf providing
decent housing , in slums was
"not going · to be solved ·by
Government-alone.", ·
He indicated that ··he would
listen sympathetically to any
proposal involving- a joint pu blic-private assault , on g hetto
h ousi,ng. . · ·· · '
·.. ·
A Tc1itati ·c Proposal
Th~ Adn1inis t r ation's Lci1 tativc '
proposa l, developed over t he/
l;i.s t six months and re fined by
til e Dcparlmenf of H ow-:ing and
Urban Developmen t, calls fo r ,
creation of a na ti ona l, nonprof-1
it, semi-public _~.!1-Df'vel_Qp.Jlli;nt Corpornt1ll11 lha t, its sponsor~ hope, would attract heavy I
private irwestmcnt · in t o ~!um
r ehabilitation by p roviding .
variet y of F ederal incentives
and guarantees.
.
'I11c substance of the plan was 1
disclosed in The New York
Times on Sunday.
··
' E ven thoug h ., no member of
the s ubcommittee ·would comm it himself to · it specific approach, today's hearings indicated ·a lively interes t in the /
pla n on the par t of ·!Irr . Ribicoff ,
and Mr. J a vits, a s well as t he 1
committee·s ·lcad witnes., , Da, ·id !
R ockefeller, New York fi na ncier
Mr. Rockefeller, p resident of
t he Chase ?v!anhattan Bank, decla red tha t . " urilan r ehbiilita tion is primarily a t ask for p r i~
vate enterpris e." But,- in rcspon
to sustained r1ucstionin g ·from
1fr. J a vits, he conceded tha t
·business would be r eluctant to
make heavy_ capita l· .otttlays j n
slum a reas ··beca us e the · ris k'
was grca.t a nd the prof/t re-,
turns poor , ._. ,_
al
.r.olc a s Cont_ractor
,
However , the Xew Yllr!, '
ba nker also decla r ed t h:i.~ busi- l
n r..ss would nrobably be abl e to
provide substa n t ia l clp as a
··contrncto,·:' acting fo · the
Govern men t-which is one of
t he roles f or bus inc.s s envisioned
the propos;1,l · P. OW under study
in the Adminis tration .
U nder th e pla n, the ,Ur;;an
Dcvclopmcn_t Corpora.Lion would /•
h elp acquire rundown hou~in;;u sing money from pr l\·atc sou r- I
c:cs such as ban ,s a nd fnunda-1
lions as .well a:-; Governm ent
fun ds-and Lhen invite i:1dustr y
to rcha.bi ifate it · chea ply and
efficiently .
·· ·
·
In this wa y, the r cpc,rt describing the p·lan wasy, the cor poration
would
"fuse
the
presently fra;;mcntcd purchasing p·ower" of the Government
with t e nrnnagcrial a nd technol o~ical capacity of "Amen. ca n industrial or;;anization."
The progra11's sponsors have
said tha t n either n ew appropriat ions ·nor new le;:;islation oould
be imincdiately requir ed.
T he plan, in its fin ai form ,
r ecommends as a first step the
purchase and rehabilita ti o~ - of
· 30 000 units in se,·era l c1L1cs,
requii·ing about _ HOO -million.
E arlier versions of t he pla_n
predicted that · ih 10_ · years . it·
could providc..,...assummg 1mt1al
success-5 mil lioa· ·cha bilitat cd
or newly b..:il t. s um un its at ,an
aggregate . cost of S?0-billion.
Appear s ' Pessimistic
?11:r: R ibicoff urged :).1:r. Rocke feller·, who .at t imes app ear ed
pessii11istic a bout a,i"akeningbusiness enthusiasm ·for la rgescale. investment in slum s on
anything other than a contractual b?.sis, to examine not the
obsta'c lcs to redevelopment but
the "hopes and the possibilit ies.'_'
·
.
H e ., u;;;:;e.:;tccl U1a t busmes s,
especially ·t he construct1on · 111dus try , woul d find in sl um re h abil itat ion J n enormous mar ket for suppiies 1·a n,:;in;:: from
floorin "' m aterial to dis posal
uni ts.
Mr. Rcickcfcllcr a lso h ad kind
words fo r loca l · r r.development
pla ns such as tha t envisioned
by S enator Robert F. Kennedy
in t he Bed,or cl-Stuyvesant a rea
of Brooklyn. The Kennedy plan
ca lls 'for t he establishment of a
n onprofit corporat ion t o engineer the· r ehabilita tion of Bedfo rd-S tuyvesant · housing.
Th. New York banker described th e approach as "mo t
hopeful."
He a lso exprc-ssed considerable interc,-t in ll[r . J avits',, sugg estion that the Go".ernmcnt
h elp industry fon11 a technological consortium similar to the
supel'sonic transport pro::ram .
The New York R epublican
pointed out that t he Governm ent wa.<; currently pou ring
lar;:;e sums of money into the
aircraft industry in Lile quest
for a successful super~onic line.
He ,q1;::r:estecl. Rlld ~rr. Roc-kefeller ag1:;,ed. that some k ind of
" broad - scRle
m a nagement
group mi~ht be established .
with Go\'emm01,t. help a nd - put..
to work d,~,·bing a nswers to iltE;
- . , - ··-. - ~ ....-.....- ., ,. · .:, .
0
·
·
�Poirt lo r .i-D /U ll to Ponder
The co nt roversy bct\reen _,M,ont m nic ry C'.J.ll.Ult.Y
an the Department o, Housing and Ur ba n Developme 1t h olcl s a much broader interest than
the rezonin g of three squ:-ire miles in the Wash ingi on suburbs. We clo not, of course, wish to minimize the importa nce of nullifying the butchery of
planning by the old Montgomery County Council
in its lame-cluck r ampage . But this is an in teresting
test case which is certain to have an important
b ea ring on the r elations between HUD and local
governments in all parts of the country.
HUD must necessarily invest its matching funds
for the purch ase of park land and the protection
of open space in accord with the standards that
Congress and the agency have prescrib ed. It cannot be, exp 1-cted t o assist a county which makes a
farce of planning and ~ou,i_ug protection. At the
same time, however, HUD must avoid usurpation
of the powers of local government and the use
of pr essur e in deciding local issues.
In the case at hand, we think HUD went over
the line in applying pressure at a moment when
the unfortunate situation in Rockville seemed to
be righting itself. Unquestionably its intentions
\\·ere good . But unless its pressure can be relaxed,
the result may be to defeat its own purpose. Senator Brewster and numerous local officials have
pointed out to HUD that the net effect of .its pressure on the new County Council to cancel its
predecessor's last-minute r ezoning decisions may
be to throw the entire controversy into court on
the issue of intimi dation .
A significant precedent for su9h suits is r eadily
at hand. The grant of a n exception to the Soviet
Union to per mit the construction of an embassychancery in Chevy Chase wa s upset in court some
months ago because the State Department had ,
brought pressure on t he District's Board of Zoning
Adjustment. HUD officials should realize that any
specific zoning change which they impose upon
un willin g local zoning authorities is highly vulnerable to legal attack.
HUD needs to have assu ra nce that the reckless
zone-busting policies of the old Council in Montgomery County have been abandoned . It needs assurance that proper safeguards will be ad hered
to in areas for which Federal aid is sought. But
these assurances appear to have been given not
only by statements from the new Council but also
by its vigorous action to wipe out the effects of
the r ezoning spree, so far as that is possible. The
grand jury investigation into possible irregularities
and abuses affor ds~ further evidence of the new
atmosphere in Rockville.
In view of these vigorous efforts to undo the
wrongs of the past and to adopt sound new p oli, cies, we think HUD should withdraw its freeze of
Federal funds for the Maryland suburbs before
the Council decides the rezoning cases' which it
has reopened . HUD could again suspend the
matching fLi'nds if the final policy which emerges
should prove to be unsatisfactory. But if it insists
on turning the thumb-screw whi1e the Council is
sitting on these controversial cases it may defeat
its own purpose and greatly embarrass the cause
of proper development of the National Capital
suburbs.
The Washi ngton Post - Nov . :2-S, 1966
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-··
Dangling- on h ook of a large er ne,,pre-assembled kitchen
and bath room unit is hoisted ornr East Fifth Street on
Lower East Side in "instant rehabilita ion" demonstration.
,..,... -·-·---~-~--......
.
-· -
-
L,
,,,._ . .
'
]\foments l ter, unit is lowered towa cl roof of the building
for whic 1 it is destined , an unoccupied old-law tenement
in which a hole has been made from the roof down.
~-....,.;•. ·-----.
l
Experiment Testing '
New Rehabilitation
---· · Me t hods Here
By STEVEN V. ROBERTS
A gian t cra ne swung a prcasscmo!cd kitchen and bathr oom unit thtough a hole in
the roof of a five -story oldJaw tenement on the Lower
East Side yesterday. Within an
hour workmen had bolted it
into place and would have had
it r eady for use except for the
plumbers' strike.
The job was part of a progr ess report on "instant rehabilitation" - a n experiment t hat
aims at cutting the time for
r enovation of a slum building
to 48 hours.
vVhrn the experiment began
la~t A;, · : the plc.n was to tr.st
new mac<'rials and r ehabilitation techniq ues on t wo unoccupied tr·ncments at 633 and 635
E ast F ifth Street. Conrad E ngineer.,;, t'.1e California company
that is conducting the experiment said It would be ready
for the 48-hour trial on No. 637
in midsummer.
'-:'!\
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�New York Times - 11/30/66
The four-month stri ,e of con-,
strnction p umbers and other
del:.w s have set back the f inal
triai' until Feb111ary or March,
accordi ng to Edward Rice, president of Conracl Engineers.
When the glistening bathrooms and ki chens were in·stallcd yesterday at No. 635,
structural defects in the 70ye;i.r-old tenement caused the
.
.
- ·
•-::;:.:.:,;::.;;.;.;.;;.....,.;;.:.;.;;...,.:.
,
unit to rest. at le:i.st an inch whether <,>ld_-Ta_w !enements aret·~~t~estions" the wisabove the ex1stmg floo r.
worth r enamllutmg. Peter L . Q..QI\:) 01 rt:, uvaun:; t.ne tenedirector for 1:1J6iR oii:!.h~r"Easc Side,
This seemed to symbolize the Abeles, housin
c~~us . an: ong- hou.,:Sin_g __ex- ~ -f.i0L!,_tor.J:m= .t.~!]nJ)- Th_ey_ cover l:i5 per ce t o!their
per~s on'""'insfan r c1ITtb!ll_ta- !2JlV~~'~ 1~iz2g-E:~J'~~ the bmldmg lots and front. on
tion"-that i t is a prom:smg currcnc expern ~ b!.lk.,'j_aid he streets only 60 feet wide.
experiment that has produced =
-================,--- - - - -=--- -"""'"'
some, but by no means all , of
the answers to the problem
of renovating slum housing.
]\[orcovcr, t:1e experts beJicYc, it should be only the berrinnin"' of an intensified refearchO program to !ind better
technical and financial tools to
produce decent housing in the
ountry's slum areas.
\rr. Rice noted that many
const. uction materials had been
·tested in the fi rst building. The
-tenement now cont2.ins vinyl
.f loors that require n o r efinish·n"' for 10 years, ceramic bath!i·o~m tiles that stick together
i\vithout liquid cement and wallb oard that is so tough that
workmen had trouble cutting
holes in it for electric wiring.
E:.;:pandablc windows t at
adapt to the irregular shapes
of the old window frames have
·been installed. Garbage chutes
lead into a Swedish device that
compresses the refuse, disinfects it, and even sprays it
with perfume.
Two one-bedroom and one
three-oedroom apartment will
be buit on each floor of the
tenement buildings. The average
development cost will be about
S13,000 an apartment, Mr. Rice
estimated, as opposed to about
$23,000 for new construction.
"There is uch a tremendous
need for better housing in New
York that it is worth r ehabilitating these tenements," he said.
He asserted that the cost of
demolishing the city's 43,000
old-law tenements - those built
before 1901, with minimal standards for ventilation and sanitary facilities - would be pro-,
hibitive.
Housing experts a re debating
2.
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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
�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.
'- -
�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.
�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.
�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
�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
�- · - - - -- - ·- 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.
�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 •••...
�,,
·----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
�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
�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
�-·· ·- --- - . . . . _., .· -· .... ·-· - L
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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
\_; •,:. .:.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
____
r"\ ~--
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.
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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. )
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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 .
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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.
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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.
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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
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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
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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
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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
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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
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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.
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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
.
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
,1
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
·I'
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.
�4
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.
�4·
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 .
�7
(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.
�9
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.
~)
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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3
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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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.
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Any textual data included in the document
"·
The Department of Housing and Urban Development
and
The Office of Economic Opportunity
CONFER ENCE ON HOUSING FOR, THE POOR
Ma y 23-24, 1966
Wa s hington Hil ton Hotel
Washington, D.C.
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Agenda for
CONFLmENCE ON HOUSING FOR TIii~ POUR
Department of Housing and Urban Development
and
Office of Economic Opportunity
May 23-24, 1966
Washington, D. C.
Purpose:
The purpose of this Conference is to evaluate the feasibility of
providing several million additional standard housing units within the next five
years, at prices the poor can afford. We are seeking from this Conference (1) a
summary of what we do and do not know about how the poor are housed, in physical,
economic and social terms; and (2) identification of alternative programs or
combinations of programs and implementation strategies, that might make decent
housing available for the several million poor households that would otherwise
occupy substandard or overcrowded units by 1970.
Program
Monday, May 23, 1966
9:00 a.m.
Opening Remarks
Sargent Shriver, Director
Office of Economic Opportunity
Robert C. Wood, Under Secretary
Dept. Housing & Urban Develop.
9:15 a.m.
Conference Procedures
Dr. Morton J. Schussheim
Director, Office of Program Polky
Dept. Housing & Urban Develop.
Mr. Alvin L. Schorr,
Deputy Chief, Research & Plans
Office of Economic Opportunity
9 :,30 a .m.
Statement of Problems and
Its Dimensions
Professor Charles Abrams
Columbia University
(The number of units and poor people in need of better housing;
the extent to which rehabilitation and/or clearance are
required; the costs involved; present locations of substandard
units; composition of occupants by race, age, size and family
composition; the national goal.)
11 :00 a .m.
Social Issues
Pr o fessor Nathan Glazer
University of California
(The questions of deghettoizing the poor and particularly
the nonwhite poor; the supplemental educational, counseling
and back - up services required; the problems of a means test
and establishing priority criteria; the attitudes of poor
and non - poor to this housing; the difficulties and oppor - t un ities of relocation . Should standards be reduced , e . g .
no air conditioning ; room sharing; smaller room size ; etc • . . )
1:00 p . m.
WNCH
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Monday, May 23, 1966 (Cont'd)
Technological and Land Use Issues
2:30 - 5:00
Richard J. Canavan
National Association
of Homebuilders
(The ~ype of housing required and its location; the
availability of land; architectural and city planning
concerns, the technological problems and opportunities
of a large-scale building and rebu i lding program; the
abilities of existing or proposed institutions to
implement the program; prospects f or cost reducti on.)
Tuesday, May 24, 1966
9:30 a.m.
Economic Issues
Pro fessor Chester Rapkin
Uni versity o f Pennsylvania
\
(Alt e rn a tive mean s of fi nancing the pr ogr am; the
effect on the economy o f a multi-b i llion do llar
program; the effect on the total housing industry
and constr uction costs; a c ceptable standards of
space and quality; the effect on the values and
cond i t ion of e xisting housi n g a nd n ei ghborhoods;
e ff ici encies that mi ght r esult from a r eeva lu a ti on
of the e conomics of the hous ing i ndust r y.)
12 : 00
2: 00 - 4: 00
LUNCH
Program Issu es
Dr. Lou i s Winnick
Pub li c Affairs Program
The Ford Foundation
(The t ypes of programs to me et the objec t ive ;
possi b le expan sion or red ire ct ion of exi s t ing
programs and t he inv ention of n ew kind s of
programs; possible number of units to be dev eloped;
~he phasing and possible mix of programs over a
several-year period.)
�List of Invited Particip~nts
Conference on Housing for the Poor
Mr. Charles Abrams
Professor of City Planning
Columbia University
Mr. Nathaniel Keith
Consultant
,
Mr~. Ruth Atkins
Community Representatives
Advisory Council
Office of Economic Opportunity
Mr. Saul
Director
National
Mutual
Mr. Richard J ; Canavan
Staff Vice President
Builder Services Division
National Association of Homebuilders
Honorable Sherman Maisel
Board of Governors of the
Federal Reserve System
Dr. Robert Dentler
Center f or Urban Education
Honorable Arthur Okun, Member
Council of Economic Advisers
, Mr. John Eberhardt
National Bureau of Standards
Professor Chester Rapkin
Institute for Environmental Studies
University of Pennsylvania
Professor Bernard Frieden
Departmen t of City and Regional Planning
Massachusetts Institute of Technology
Mr. Nathaniel H. Rogg
Executive Vice President
National Association of Homebuilders
, Mr. Robert Gladstone, President
Robert Gladstone and Associates
'
Dr . William G. Grigsby
Institute for Environmental Studies
University of Pennsylvania
Klaman
of Research
Association of
Savings Banks
Mr. Arthur Levin
Potomac Institute
Mr. Albert M. Cole
President, Reynolds Metals
Development Corporation
, Professor Nathan Glazer
University of California
Dean Burnham Kelly
College of Architecture
Cornell University
'
Dr. John R. Seeley
Chairman, Department of Sociology
Brandeis University
Mr. Miles Stanley
National Advisory Council
Office of Economic Opportunity
Dr . Louis Winnick
Public Affairs Program
The Ford Foundation
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Housing Poor Families
The Problem.
A program to house all the nation's poor in decent
housing at rents they can afford contains two distinguishable elements:
i)
how to improve the housing conditions of those presently living in sub-
•
standard quarters; and 2) how to lessen the.financial burden of those who
live in standard quarters at the price of devoting an excessive burden of
· their income for housing.
OEO has e.stimated that upwards of 4 mi·llion poor
families and poor unrelated individuals in 1964 lived in housing that was
dilapidated, lacked ~lumbing facilities, or was overcrowded •.!:/
The number
· who overpay for standard housing is harder to estimate but is large.
For
example, in 1960 rent-income ratios were computed for 5.7 million families
with incomes under $3,000 .
4.4 million of them were paying 25 percent of
their income or more for rent.
An ad ditional .5 million were paying be-
tween 20 and 25 percent of their incomes.
In theory, housing needs of poor people should decline because of
anticipated declines in the proportion of families who are poor and because
o·f continued upgrading of the total housing stock.
Between 1950 and 1960,
however, poor families received only 2.5 million standard units out of a
~t overall increase of 19 million .
That is, families representing 30 per-
cent of the total in 1950 and 20 percent in 1960 showed 13 percent of the
1/
The incidence of housing characteristics in 1960 was applied to 1964 data
about the poor population, producing a total of 4.1 million in such units in
1964. If one proceeds alternatively from the housing stock itself .and the
rate at which improved housing stock reaches poor families, an estimate as
high as 5 million poor families in substandard housing would be produced.
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net ove_rall increase.
Moreover·, in some' places and for some groups' "natural
forces" may exacerbate the problem in the years just ahead.
Low
!
income
f
families presently living in substandard housing are less mobile and have
more deviant characteristics than thoae who were able to take advantage of •
the filtering process during the 1950s.
And such forces as zoning and sub-
division controls are likely to present new impediments to the distribution
1 ·
downward of _standard housing.
That . the current welfare system --- an ex.am.~le
~
of the pure income approach to housing --- has not produced larger results :is
another argument for seeking substantial approach to the supply side of _theI
equation.
Obviously, some improvement will occur naturally and one must assume
(
too that cash income maintenance programs wi ll meet i ncreasing portions of _/
family income de ficit s.
Reasoning fr om 4 mi llion families and indiv iduals
in s ubstandard housing in 1964 and add i t i onal millions pay ing more than
the y c an affor d for st andard hous ing, one may e stimate the object ive more
or less a t wi ll .
OEO has es t imat ed that the ob ject i ve should be pi t ched
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to the expec t a tion tha t the me di an i ncome of families who should be reache d
would be $3, 000 ( f or a f ami ly of fo ur ) .
From th is base, one must de t er-
mi ne an overall objective within t he target date of five or six years.
Developing a Program.
In a pproaching the developmen t of a program
it is necessary to judge what may be built and what may be reclaimed.
Such
{
an approach represents.more than simple economy.
It allows room for famiU.es
that may wish not to give up thei r homes and provides a pattern for contintled
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maintenance of the housing supply.
In the decade from 1950 to 1960, some-
thing less than one-fourth of the net increase in standard dwellings represented rehabilitated units.
On one hand, there has been considerable
reduction in the stock of housing that lacks plumbing facilities and is
comparatively easily rehabilitated.
On the other hand, new aids are
available for rehabilitation and new effort is to be invested in it.
tt
is, in any event, necessary to make some assumption about the proportion
of standard housing that would be secured by rehabilitation and the proportion that would be built new.
Similarly, it is necessary to make judgments about the geographic
distribution of additional standard housing.
Although substandard housing
is disproportionately distributed in rural areas, some number of the people
now using it wi 11 be seeking housing i n urban areas.
Finally, plans for a
substantial program should include consideration of staging a buildup of
the construction industry.
For example, a net increase of 1 million units
a y0ar might be built up to at the rate of 200,000 or 300,000 each year for
several years.
The supply of housing for low-income families can be increased either
through government incentives to "the private sector or through direct construction by public housing authorities.
Incentives to the private sector
include -subsidization of land costs and reduction in the cost of bon:owing
building capital (low interest loans or subsidized interest rates).
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Use of
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these aids provides an attractive incentive to private builders (and rehabilitation contractors) while permitting some control over the allocation
of benefits and rentals or sales prices.
However, these forms of assistance
are not sufficient to produce housing in the $50 a month range.
poor fam:1,.lies must also be subsidized.
To do this;
A program of the JJ1,B.gnitude being
described might be fashioned entirely out of two elements
rental or
purchas.e assistance and interest and land subsidization.
The obverse side
of these assistances are conditions as to beneficiaries and uses.
Obviously, Jll,S.ny variants of the two elements are possible and alternative programs may be fashioned as well.
Related questions that would arise
include the uses and place of code enforcement, the type of research that
might be most productive, the special ne.eds of rural areas, the niethods. of
assuring desegregation, and related needs for providing public and social
services.
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STATEMENT ON URBAN DEVELOPMENT CORP.
One area the Federal government has neglected in its effort
to make lower cost housing av~ilable is the use of technology and
other innovations to help reduce costs.
..
Therefore, the idea of establishing an urban .,development
~orporation to create a large enough "market" in the field of
rehabilitation so as to induce innovations is an attractive one.
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The need to explore all ways of encouraging rehabilitation of
sub-standard housing is
great.
However, there are a number of uncertanties and risks involved
in launching a UDC program.
To begin with, it is unclear to what extent i echnological and
institution j innovations can reduct costs.
Furthermore, the economic
feasibility of the program, and therefore the assumptions on the degree
of financial support needed, is highly sensitive to such factors as
acquisition costs, rehabilitation costs,and mortgage terms.
In addition, the program cannot be started small.
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I
It must be
launched on a large enough scale to create the necessary "market" for
innovation.
Therefore, the program must have top-flight leadership,
and it must have a firm commitment on the availability of 22l(d)(3)
below-market funds, FNMA special assistance, and rent supplements.
Given the proposed 30,000 unit target for the first two years
and given the need to operate on a scale of around 10,000 units in
any city, it should be understood that the program will have to be
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limited to a small number of cities.
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It should also be understood that no matter what cost-savings
may be achieved through innovation, major subsidies in one form
or another will still be required to meet the housing needs of
\
the poor.
Recommendations
The Task Force therefore recorrnnends:
1.
That a program along the lines proposed by HUD be
inaugurated to test the capacity of UDC to stimulate technological
innovations.
2.
That the UDC should seek to encourage and to assist-through ·
training, technical assistance, loans and otherwise-- the formation ·
of competent and qualified local non-profit organizations to help
carry out its mission.
3.
That firm commitments be made on the availability of
sufficient 22l(d)(3) below-market funds, FNMA special assistance
I
funds, and rent supplement funds to meet its program objectives.
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4.
That a clear understanding of the relationship of the UDC
to existing local agencies concerned with housing and urban development
be worked out before the program corrnnences .
5.
That careful consideration be given to explor}t'\ith those
most concerned possible political acceptance• of a UDC program
involving new construction as well as rehabilitation.
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Subcommittee on Exe cutive Reorganization of the
Senate Committee on Government Operations
Afternoon session - November 29, 1966 .
Witness~
Richard M. Scammon , Vice - President, Governmental Affairs
Institute , Washi ngton .
1
th' . Scarnmon testified on the need for a mid- decade Census, or an inter -
censal urban Census. He said that although the 1960 Census is out - of- date,
obviously the 197q census count won 1 t be ·available for five years.
A big factor in the obsole scence of data is the increased mobility of the
population . According to . Ya- . Scammon, there is a great need for area data
rather than figures from a city as a whole . I n the questi oning by
Senator Ribicoff this point was elabo:::-ated upon and it was stated that if
information had been available concerning the situation in the Watts
area of Los Angel es , the riots could have been avoided . Senator Ribi coff
said t hat when a census was taken of Los Angeles the bad figures from such
areas as Watts were offset by the figures f:::-om more affluent areas .
Senator Ribicoff pointed out that Yir . Cohen from the Department of ~:EW had
used figures which dated back to 1961 when he testified before the com.~~ t te e
and that government agencies cannot cure social ills without up- to - date
statistics which point definitively to the location of those 'ills .
Senator Rib i coff and lfir . Scammon both agreed that a mid- decade census is
ne cess ary . Senator Ribicoff mentioned that the Office of Eco nomic Opport u.,."li ty
is planning to take a special census in 1968 in st andard metropolitan ar ea s
to complile pertinent data on such statistics as the median family income .
- Vir . Sca.m.~on laid the blame for the fact that a census is taken only every
ten years on the Budget Bureau . He said that the costs involved are so
tremendous that the Budget Bureau would not agree to a more frequent census.
'
Method of t aking the ce nsus
Senator Ribicoff asked whether or not the method of ta..~ing the census is
important. He pointed out that a census was conducted in Watt s where
questionnaires were mailed to the 1·esidents. He questioned whether or
not people at these levels would be interested enough to return the complete d
forms.
Lack of data on adult male Negroes
Senator Rib ico ff also pointed out that i n the last censu s betwe en 15% and
~.r. Sc a~.mon rep lied t hat
there was a slippage in less afflue nt areas of cities, but he did not know
whether Senator Ribicoff's percentages were entirely correct.
2Cf/o of adult male Negroes were mi ssed entirely.
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Advantages of a five-year census .
Senator Ribicoff said that abnost all grant programs are based on the
number of people and their needs . He claimed that we must wei gh t he
advantage s of a five -year survey in relation to these programs . He said
that a · f i ye-year census would be better for decision ma.~ing by such
administrat ors as the Secretary of h'UD .
Central location for statist ics.
Senator Ribicoff also asked whether there should be a central place for
t he gathering and keeping of statistics, rathe1· than allowing each Department to have operations of its own . ifi r . Scammon sai d that a task forc e
heaaed by Congr essman Gallagher r ecommended s et t ing up a cent r al ban.~ for
statistics, but that a big concern of the Task Force was the right of privacy
of individuals in responding to questionnaires. Senator Ribicoff contended
that where the information was merged, th~ pr.oblem of confidentiality was
lost.
Problems
Senator Ribicoff
to get people to
forei gn areas of
in orde~ to gain
said that the problem of taking an urban census has been
do the work . It was also poi nted out that in problem or
a city, t he census takers must be famili ar with the area .
the confidence of the people who are interviewed.
Spending in.cities
Senator Kennedy asked through the _Chainnan whether it is possible to
determine .how much the government is spending i n ea ch city to rebuild .
He wants to know how we can get better figures . Mr . Scam..'llon said that
this information should be available from the Census Bureau or through
the Subcommittee.
Senators P_!esent:
Ribicoff
Javits
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Hea:ci ngs before the Subccmmi tt ee on Executive Reor gan i ze.t i. or:.
o f the Senate Govermr..ent Ope rations Corr~tlittee
Afternoon session :
Witness :
Novembe r
30, 1966
Judge GE!org e Ed,·re.1·ds, U. S . Court of Appeals, 6th Circui t ,
F orme r Police Co~.missione r of the City of Detroit; 1962 and
1963.
J udge Edwards outlined for the Subccmmittee the p::.·oble!ns of law enfor c ez:-.ei1t
in the large citi es of the U. S . with examples drawn la1· ge ly f:r ora his o~-,n.
experi ences i n the city of De t::.·oi t . The J"G.dge emphasized tl":e prob l em::: of
the Negro co:r,!nuni ty and the fac t that the a ttitude s of Negroes to,-, ards Ls:w
enforc ement are the product of the ir early environr.1ent mainly in t he South.
J udge Ea.war ds said that r.1ost crh--rie is cc:r.r.li tted by Neg::.·oe s and inflicte d.
[ on othe rs of their own race . He said, hc,;ever, that the large r::2.jority cf
· Negroes are i n favor of l aw enforc e1-::ent and want to see it i::1~roved .
The Judge made the followi ng sugge stions :
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16 .
Fi nd out more facts in regard to c o;·:iplaint s about police brutality .
Transfer trouble:nakers on a police force and those who use bru.tali-::.y .
En d in,restigative arr ests .
Increase police in high crime prec i nct s .
Fe ci.e r e.l government must help loc a liti es co:n"':Jat organized c rime .
Professionalize policemen by upgradic·g their stan dards throue;h bette::.'
trainin g .
Prorr,ot~ Negroe s on an eq_ua l basis with uh i {;es .
Ban polic e dogs in raci al d.err.or2str at ions .
I ntegrate p:)lic e t eams .
Ra i se the pay of po l ic emen .
Hir e more polic er.ien .
Coordinate l aw enforcement agenc i es .
Esta"':Jlish a i'iat ional Police Tr aining College .
Est ab lis h hi gh l e vel board..s within police de:partn,ents to i nvestigate
charges a g ai:1st policerr.en .
Federa l grants -i n - i i d should b e made for police training .
End the autonor!lous :-iature of l aw enfo:r·c e ment bodies .
Witness :
l
Robe r t Coles , M.D., ~ese a rch Psycl: iat ris t , Es.rve.::.·d Un i versity
Health Servic e s .
Dr. Coles is a child psychiatrist w:'lo ,,;orte d exten s ively i ri the So·t.1t h e.n.i
studi e d the effect of racial ten s ion on J:egr0 child.::.·en . He stated th~t t he
young Hegro children who fir st att e::-ided white schools i n the S01;.to. and ,_.;~-:o
h ad to er2du.re mar:y torments and ant agonism siowed a great stre ngth of
chara ct e r. He said that i t was a puzzle::;e nt to him that st::.·e s s yr odu2e s ;-:,c-r-::
str ength of character tha,, an envil·o,Jn-21;_t of lu.."\.-ury 01· midcile clas s tr""r: q_uili ty . Eo1.-rever , the Doctor poi n.t e d out that afte::.· the 2.g2. , of twe l ve ,
unde :cpr i vileged c hildren b egin to r eali z e that ob e d i ence to the Bibli c2.l
teac h in g s of their child...hood will r2ot pay off. P.ft e r thi s re a liza~ ion t'::le
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.".·=;rgoes 1·:i1at psycnia trists c all " death of t h e t ea::-t . " 'I:'rseY
then oui te
·· "=D b e co:ne a nti - so c i a l a nci. turn t o a. l i fe of c:::.- ~,e or
deli nq_uen c;-r . .::'b..e Doctor pointed. ou t tr..at sor~e d e linquents do ,,,.co:1g b e c 2.u s 2
they c an f L . i. ::oth i ng r i ght , nothi ng signi f ic ant and ch a l le r..g i ng t o do .
Main questions raised. ·oy the Su"!:l co!!~:i.i ttee :
1.
Rac};:et ee:..-ing i n shEn hous i ng .
Senator Kerille(\}r ask ed J udg e Ed,,:-2.rd.s whe the r orgc.nizeci crir.-.e pla.y s a ~ c._..,
i n the creat ion and. continuat io r.. of slur:: housi ng con cii tion s . The Juc'. ge
s a id that i t probabl y does and Sena to::.- Kenne ci.y tol d the Ch 2..iri,1an that
h e t hinks the Subcomnlittee shoul d expl ore thi s ~ossib ility .
! '
2.
Defense by citi e s a gain s t riotin ~ .
Senator Ri b i coff aske d the J 1.;.ci.ge Hhat a ci t y c a :1 do to d.e fend i ts e lf
a gainst r i oti ng and at wha t p o i n t the nat ional Guar d s:-::.ould. b e ca l l e d
_in. The Judge s a id t h a t all of his suggest ions HO"'c1ld help :prever.t
r iots , bu t once the ri ot had. c e gun i t c ou1d. be coun-c e1.· ac tec. on l y by
qu ick o:cgan~z a tion and gre a t r,,ob i l i ty of sub st antial forces on t he sic'.e
· o f the l aw . He said that t he f orce us ed mu s t b e ove r Ki.1el.:1.i ng a ,:d di s c i ~.)lined .
He be_l ie v e s that tne Nation a l Guar d s i2ould be c a lle d. to a riot sc ene
whe n ' police gur, i'ire i s n e eded .
3.
Cu l ture o f p-.:> ve:rty .
Se nator Ke n ne ciy a s}:e d Dr . Co l es whe t her th e r e is 2. cu l t uyc of -;:iove i't y
i n the U. S . 'I·:1.e Docto r 1-epli ed that h e does not t :ii ~ '- t ha-'c we reJ.lly
h ave a cult u re of povert y because pe op l ':! a:::e no l onge r i so:'..a teq. due t o
th e exis tenc e and ext e ns i ve n e s s o f a rr.a .ss r::edia o f corr.:,;c:.>l i c a t i ons .
Throug:1. TV a n d othe r me d i a p ::: a c-c i c a lly e v e ryone i n this country is a,.-ra:::-e
of t:C-1e oppo:ct w1iti es wh i ch ex i st o:r at l e a s t t h at ther e i s a nett e r i-,2:y
to live a l t hough the a tt a i ma.ent o f t h a :, l i f e i s not p o s s i b l r, .
lf.
B'J.ss i r. g of schoo l chi l clren .
L
Although D~ . Cole s thi rik s t hat the Eosto:1 e:>..--pe rin e r:t i n bus s i ng c hilclr2n
t o t he s u'::mrb s h e.s b e en qui te suc c e E:s lul , Senat or Rioico ff i ::,pli ed t=-,c:. t
i n hi s y i e1·r the ~;1oney. ::-: i ght better be spE:n t iri~yrov::.. ng s l ~-:--:. c: 0.ucc..t i on
gener a lly . Se nat o:r Ri bicof~ sai d t h a-'c h e d i ci r.o t th i nk t hat the p l a ci r.g
of very poor chi l dren in school s ':-:i t h a f f luent an d well fe d c hi l ci:::.· en
was p s y cholog ically goo ci. for t h e u nd.e r :;,:ci vi l ege d. c h i l d .
5.
Rehab L!. itat i on o f sl'.ll-:i. d,:e l lers .
~ a r.ybocly c cJ.:-, cha::: 6 e i: gi ve n s01:·.2~:1. i r.g t o rf aepll l i b8.edcre on .
Ser.atc:c Rib i coff a ::;ke d ,·,het ne r there i s ar..y h o-::;e fo:::- t ~12 :::ost -vio l e nt
rr1ert::> e r s of sllt7t c o:r_~11u1~i ti es .
1I·i-.:. e :8:> ctor·
t hat i n ::i s op i n2.on
Ee c ited as
ar~ exar::.p le t he a1itob io z;ra~!.i.;y c f lv:s.l col.2:-. X ,.,;10 1-:e.s f r cr:1 a r.::, st u~:foTt.1.L;.f.t =
far:1ily and ·w!".1 0 t ur ned a~-ra·:l ::'ro~n c. li f e of C!."'i 143.215.248.55e to b e ccr...e a l ea.:Iei-· o
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6.
Mea!1s ,;:
·, ~h ; n g
There ,.;.·.
slurn cl:.i J.fu·en .
general ciiscus s ion of wl:.e t:ie r the vast amount of 1rconey beir_z
~catio!1 today is payi ng off . Senator Kennec..y '.·ras v e ry int e. ::.· e s"c e c..
i n findi ;;. _: ~-2tter ways to help slun c h ilfu·e:, .
spent o :-,
Senators present :
Ribicoff
Kennedy
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ITEM.S OF IllfrEREST RELATED 'I'O lfiJD RAISED
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!ill/1.RHTGS OF
RIBICOFF SUBCQl.f:•.ffl'TEE ON EXECUTIVE REORGANIZATION
~m .,
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December 2;
1966
J ~1ES M. HESTER; President, Ne'., York University
Mr. He ster evaluated the contribut i ons which New York University
and similarly situated educational institutions are malcini to the
improve~ent of urban conditions . _The shortage of available financi2.l
r esources creat ed by a lack of sup:9ort from public sources was
s een· as the major obstacle to the broadening of the uni versity role
in u rban affairs .
l.
The I mprovement of Research on Urb211 Problems
President Hest er stated that the effectiveness of university research
int o urban problems was limited by the need to proceed on a projectby-proj ect b asis . The availability of fu.~ds ade~uate to finance lo:1g term programs would l ead to an increased university r esearch contribution.
2.
[
The Heed for Greater Univers ity Participation i:-i the Ad:-r.in i stratio:1
of Federal Government Pro1; r a:ns Affecting the City
Senator Ribicoff stressed that the soluti on of urban problems depe:rJ.d.s
upon the :i;:_ecruitment of oual ified persons to carry out proGrams which
Congress ha s authorized . Unless the University can i nc:::·ease its
supply of such personnel, t he objectives of recently enacted l aws
will not be r ealized .
President He ster replied that N. Y. U_. was fulfill i ng its responsl;)l..Ll-v~to the city within the fr amework of existing finaYJci al resources .
GEORGE STEill~LIEB, Professor , Rutgers Uni ve r sity Uroan Studies Cer.te r
Mr . Sternlieb maintained t hat federal programs aimed at alleviating
subst an.dard housine; conditions have not achieved t heir obj e:cti ves
because f eder al hous ing policy has not t a1~en into account the
r ealities of the urban ghetto situation . The primary er:1l1hasis i n
urb a.YJ r ehabilitation should be on the r esponse of the persons. li vi:13
in slum conditions to the mea sures desi gned to help the:n .
1.
Public I e;norance o:f
FRI\.
pro~r2cr.s
!'fir . Sternlieb declared that the sm3.ll ghetto lane.lord usc:ally doe ::;
not know that FHA a s sistance is available. The a110.rc;1e ss of FriA
p rograms is lir.iited to l arge proper ty owner s .
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2.
The I moact of FilA. stande.rds on Urban nehabili tat ion
!tr. Sternlieb emphasized that the adoption of more sensible fina..'1cing
arrangements in the field of low incor.i~ housing was ir,,perative . A
property 01-mer in the ghetto who sought to bring his parcel up to
FHA sta.'1dards would comrni t "econo!!li c suicide
T11e FHA st2.ndards
were uescribed as completely divorced from the housins market and
the capac ity of the neighborhood to sustain such housing .
11
3.
•
The Need for an Increased Emphasis on th·c: Promotion of Hor:ie
0',mership
Mr . Sternlieb maintained that the e::qJerience with the public housing
program indicated that better pnysical facilities will not produce by
themselves a corresponding improvement in living conditio~s. The G~etto
[ resident will not support m·ban rehabilitation unless it promis e s to
lead to some typ e of home ownership.
4.
The Desirability of Greater Administration Awareness of Urban
Froblerns
Senator Ribicoff criticiz ed the failure of execu-tive departments
generally to concern themselves with t he condition s that their progr2.:r.s
are designed to affect. He declared that the testimony of ~rr . Sternlieb
would enlighten Secretary Weaver and his associates in the Cabinet .
LEES. STERLING, Executive Director, Arr:erican Property Rights Association,
New Yor~ City
Mr. Sterling testified that the abolition of rent controls ar..d the
compulsory re - education of welfare _rec epients would be a large step
toward the solutiqn of New York City' s housing problem. He de"'-anded
that New York City rec,::ive no demonstr ation cities money until r ent
control imd welfare abus es were abolished.
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ITEMS OF D .TTEREST RELATED 'I'O EUD RAISED Nr !illJ\RiiXGS OF
RIBI COFF SUBCOI,ii.U'FrEE OilT EXECUTI VE ru.--ORGAi'EZAI'ION
De c e mber
5, 1966
( mor ning )
CONS'l'.ANTINOS· IX)XIADIS J President , Doxi a dis As sociation
.
Vrr . Doxia di s ma intained that t he cri s is of urba:., s o ciety c oul d b e
·'
a llevi ated only t hrough an appro ach b ase d upon systematic k.nowledGe
of hu man _settlements . The gre at defe ct of existi ng urban develo:p;nen-;-,
p rograms according to 1-ftr . Doxiadis i s t hat they h ave a n i mp act on a
l imite d segme nt of the totality o f urba n existenc e . Ti1e s e effor ts
c onfine d t o a singl e area c annot produce a f f i r mitive r esults bec ause
the problem of mas s tra." lspor tation or t he d ilerr.ma of the c e ntral
cit y are integrally r elat e d to the broader p atterns o f humon
s ettlement. The main points r ai s e d in the t e stimony and d~ring t he
questioni ng p e riod wer e the following :
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The Fa i lure of Feder al Government Progr ams to Sol ve Urba:1 Pr ooler::s .
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Mr . Doxiad.is stated tha t t he public hou s ing and u r ban r e t'.ewal p:•: :
h ave riot pre ve nted a worsening o f t e e ur b a n s itu ation . The d e:::~;:·___ _
c itie s progr a m was de scrib e d as "a · small beginning in t he direc·:.; i o;: o::· ·
c oord i nat ed ac tion , s mall in size and small as c ompared t o t !'le a r e as
i t mus t cove r . " .
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2.
The 11ee d f or Avo idin·g Incre sed Pr essu re on Urbe.n J1.re.e.s
Mr . Doxiadi s sue;gested t h2.t t:.1~ cri s i s of the cit i es ~ight be 2.ggravc:cted
by a substant i a l incre a se in f e d eral ex_penc1i tures for urb&.n d e ve l o:;:irr,3nt .
Ari e a s ing o f the p re s sur e o f exi s ti n[!; cit i es t hrough the c onstru::::ti on
of n ew urban c enter s s hould b e cons i d e red .
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3.
Feder al P-.cor;rar.-1s as a M8 chan:i_sm fo r Accuirinr; I ncreased !(r,owled;,2
o f Ur ban Pr obl ems
Mr . Doxi adi s s t r essed t h a t an awarene ss of t h e i nt e rrela t e d chan1c te r of
urban p r oblems should l ead t o a n i nten s i fied s t udy of s oci al , e c onorr.ic ,
an d po_l i t i cal p a tterns pre va i l i r.g in u r ban areas . He urge d that c;ov::::c:.:.:::e:t::.:.
p r o2:ro.ms should b e u til i z e d to p:t ovide increased knowl edge of these ::i:3."./c,:.::::·:·,::; .
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Th e Preserv at ion of Ouen S-93.ces
Mr . Dix i a di s declared t hat t he c onstruct j_on of public facili tief. in
s electe d areas would cnc ourac;c persons and b usi~esses to l ocate t~~m s e l v es i n a manner which would s erve the int ere::;ts of an enti:ce u rba:'l
r e 6 ion .
The c o:-iservat ion of open l ar,d b y the government is thus
n ecessa:cy t o the creation of an infrastructure of p'J.blic faciJ.ities
whic:, wou ld m8.ke po s sible orderly ur':)an deve lop:~!2nt .
5.
L
T11e ResoJut;_on of ti1e Urb2.,, Cri sis D2µ2..rids lJ:,on a Li n i t&.'c icn o;._~
Co~·.~:·.u:1 i_ .J~y J..u~·.o;·Le, ::~:,,-
.M:- . Dcn:iadis called for ov-2rall f-::!o.cre l govern~r,ent co:1t:::-o~ ;:,;: 'c:~,2 ]='-';·, . .::;:·:~,.
of' t'r...t:-c::.!1 st:t"tle t.:i:::"t . '"J:i1t..; .:.cnLi:1l10:~i cn o~· c o~1::riu[.1ity a ~ ~v.:1c.:1:· . .,~.t -~·1 1.--..:: ..._..~ v.
to its owi d2ve lor,,.2::-.t \-; ill :9rc::1-<c2 a i-iorseni.ns or t he
'X::'-:::L:
c:::-is.:.s .
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Subcommittee on Exe2utive R~orga.~i z aticn o f the
Ser.ate Co~mittee on Government Operatio~s
Afternoon s ession :
De c ember
5) 1966
Witne ss:
Walter P. Reuther
Subj e ct:
Problems of the Citie s
Mr. Reuther was accompanied by Jack 'I'. Conway former Deputy Di1·ector
of the Housing and Ho;:;;e Fi nance Agency and OEO . Mr . Re utrse:::- c.e2..i ver2c:
h is statement on behalf of t he six ar..d one-half millicn industrial
workers re:presented by t h e I ndustrial Ur,io:1 Depart ment of the A.FL-CIO
and the millioYJ. and one -ha lf we:nbers of t he United Automobile , P.eros~13..2e
and Agricultural I :Ylp1,.ement Workers of P.neric a.
He advocated a weaving of all the el ements, h ousing, fu"lti - pollution
control and others , in co~oating urban blight . He s ai d that these
efforts must entail the n;ost participation possibl e by eve-:::yone
affected {3-:nd there must be a ma..xi mum coordir:.ation of effort . ·
He also said that t he problen:s of cit_ies are b eyond the e conor::ic c a:pf,::.::..li ti es
of the loc a l gcvernr!lents . However, h e feels t hat the real drive and U"lr 'J.st
rr.ust come fr or.i the l ocal level .
[
!fir . Reuthe r proposed the creation of a I~ional Non:pro:;:i t
~-I0J~ng
Coruorat.."!_.on consistin g of the be st :ni:1cs fro::i7.a"oo::i.· ,- L:.na:-,c"e } i!:o.ust ·,y,
education, etc . He prefers t ,1is nongovernme ntal type oi' cor~)o1·at i o0.
b ecause sucn ari organiza.ticn would r:.ot be entrenched i::i. t:ic bm·e:c..uc :::-2.'.:, ic
p atte rns which are to be found in the governr.1ent . He also -chi::i:~s t:1...1.,
thi s type of orga.vi.iz ation would not involve in- fighting i·:hici"l is
sometimes prevalent _in governr:1ent oi ga.n iz ation s . In h is o::_:iinion } a
private orga..."lization would b e much m-::ire :flexible .
Jl"u" . Reu'cher , in suggestinG tnat the taslt cf r etuilding t::.e city be
done by the tot al co~11!Lunity ) de sc-:::ited the Detroit i<etropolitan Ci ti :-t,ei~s '
De velopmcr,t Aut:iori ty , of wl1ic:1 r.e i s no',, chairr.'.lan . He said tl:.at t r,j_s
Author:i.. ty j_s tryi ng to r 2bui2..d the city a ncl to qu2.lify Detroit a s a
D21r:onstration City. 'I~~ is Authority now h as t he .s.cti v 2 :participatio,. o:?
industry , :i:etail stores J churcr,es , c ivil r iG}lts groups 2.:.1c. r,.;21:. y othe::r::, .
He said the y are trying to c :r·eate a co~,11;uni ty :;iar"cnersni:p .
v'
.t-1,r . Re uther describ e d the three kinds of r:,o:ney w:1ic:1 t he g ::Ol;:;? ,;ill 1..:se
to build hou sinJ as " seed mon e ; ,) developr.,ent rr.oney and r:--.orts2.::.;,2 u:c,.e~-' .
}Ie s aid that t De seed· tj'!OD·::!Y is nee Ce d t o r.12.ke the plans a:~d s·c1143.215.248.551.lc..: c
int erest in the progra~n J bt1.t \·,· ill not b e- r eturned to the dc~ors or t:~s
goverr:.r;;ent i f rr:ac.e thro~isn grants . In thi s rega r d, he se.5- d that unic.:1
p ens ion f ur1ds could p robably b e 'J.sed only for mortgage mor.ey b e cause
the funds are cont.rolled by :Beards w0ich ,~t"J.st de c;ide ,-;het:--.. er t ;:.e inv e "'i:-::,2:--!t
of the r::ioney is se:cm· e . He s a id t hat see cl r::o!'.ley a.n.d d evelopr.'!e,1t mo:-,=--:;' ·.,c,, :2.c',
not "be a. pe:rr:-1i ss ible investr.1ent for t11ost pe!1sior: J:\1rAG.s .
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Oi:e fu_r1ction of the nonpro£'i t co:c-poration ; acco:cdine; to E:_·. Re1..i.:-her;
would be to stir.ml a te and e:1cot.n-age t:-.e ouild:Lr:.s o:.': low i nco,.1e h cusi r.:;:;
by g ivin 6 technical assista n c e to builder.:; wbo would 0:9::::i·ccte fo::: a
profit. He ·s2.id t~>iat t ::1e:·e wouid necessa1·il:,· be ex-.9e1·ts 2.v:1.ila-ole o:c
on call. He said that the key t o t he ·,,l-wle p:c-oblen; of ,r,:oviding lo,.;
i n c o:ne housing is to demonstr2.te the p ra".!t ic al c 2.:p3.bili ty 0£' sa.'-< :in~
public plmming compatible with :9r :!.sate plannine; a:1d builo.i::J.G ·
' .
'
Kr. Reuther s aid that h e is very e!1thl,siastic a':)out the Demcnstrat i ons
Ci t ie s Bill. .However ) he criticized Congr ess ' attitude to-.,·a rn ·ct Le
appro:;iriation o:;: n,oney for don;est i c programs . He thinks ti~a t these
prograo,s s hould be fu..rided a...½.ead of tic:2e ; so that the :Oe:92.rtrne:ot::; ,-,ill
k n ow what mone y is available and have the money in tb1e to pl a.., 2.::e::c.ci .
He thinks long term c ommi tt:n2nts should be mao.e for c.or,11:: sti c proc1·a::is
as ,,e l l as for mili t_ary progra:ns ar;d i'or,=i g n aid.
While c ri ticiz ine; pre s ent practices of 12nd use in cities ;
suggested that a l ar.d b2.nk should b e c reated to help l oc.3.l
p r ovi d e· l a,nd for low and r.1oderate inco,:.e housing . :-re s a id
could. l earn a lot from Great Eri tain . He also pointed. out
no slu~s in Swe e.e n .
1·~ Reuther
con:::,u::1i tie. 3
thc:t the U . S .
th~t t her e &:-·::;
Mr . Reutl:.e r · c ont ended t hat the only way to r ed1_;_ce the cost of ouj_lcling
hou ses is to appl y modern ; advar::ced t ec:hriolo~y 2.s i.t h e.s b een e.:ppl i ed
t o such .fields as space ex-plo::.·atio::1 . Ee believes t ::-,2.t a ho·.1s-:: uorth
$16 ; 000 according to present standards could b e developed. an-:: 3old ::·o:::
$8, 000 if i ndustry i s sccn-m how to do i t b y research ins'ciG2,tcd by t h e
gove r nment or a private :::i.on - profi t cor·::;ioratio;1 .
[
11.r . Reuther was h igi1ly c ritical of t he present s~rstems of r.~s s t~ ... ,,sus :r'c.?,:~j_c,:1
in this country. rie s ai d that t he _c ar i ndustry ':iill e ver;tuaJ.ly uffe:c fn:;:.1
self- s tra.'1gul at ion o n the high,-rays . Fie thinks it i s ri diculous for a
p erscn to c arry a ton and. a h a l f of rcetal with nir,1 to wcrli: everyds.y .
Ma in que stions r a i se d by Subcorm;ii ttee :
1.
Fa1~t icii;>ati on by private inc1.11str:y in r eOuilC.ir..f- ci ti.es .
l-1r . Ri b ::.coff 2.s~ed i-!D.lter Beuther whe:::. ratio \-:culo. b e de s i :rE..ble :o:cp art ici.p:i.tion by private indus t r y 2.:.1tl go\rey_~:.!e P-t i :r1 r ebuilf~inG 2i t i er, .
Mr . ~e utr..er replied that he t hcc:::;_lt the mi:-i. irau:1 ratio s h ould oo $1 o:::
gove:rr.i~G2nt mo!1e:>' for e--..rer:/ ·~5 of private fu.r. c~.s used . ·I 1his \·.:-a s the r 2.-:.i.0
p r oposed by Davi d Rockefeller.
2.
Tee.chin;::; mi c r s.,, ts t o live in the c:i.ty .
The Cnairt,1EL'1 aske d w:io t eaches the farm p e o::;ile h ow to live i:1 c.itio s 21c.
how to e:void tur-ning hrn.l :::- ins into slu'.'1 ~2ss . He c laice d thi s i s o;t.:::::,
the gli ght of public housing in r.-.2.r!y cities . r-:r . Re uther :;aic. t nat t:--,::
w1fort-..1r).ate thi.Dg is th a"c most new city d,,•ellers leE..l'[", i'l'O",. tt:.e :;::,20::_:iL, ,. -:: .::Xnv·.-i tic l ec.. st. abou"~ l:r_;·.., to li\~8 ~n a . : . : ~~y . __. . :::. :.(~ "'.:11.::.J.:, : .::c·:22;.-- : :1:.:~ .-::)_·;~,
b e cr6aniz e d from the slutT!s to co ba c~ into the sJ.u~~s e.2:.d st':.O\·! -.9co~l.e >o-·:·
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to live £j_nd ta..~e ce.r-e of rel12..bi.litated fu""'ld nei,.;:- housing.
[
Senator Ribicofi' seid t11at ~atc :r
Oil
.,_,
i;1 vne he r~r ings
will
becomes a.
3.
Se:nator RibiGoff a·skecl ho·w i s the govern:nent org.:Lu.ized to tc..~:e caJ."~ ot
the pro1)lems of urban -~~r.-1·2 ric 2.. . t·T . Co::P,-ts_:_y.. said t!-:at t !1.e so --1e!·1:r~er!.lc 1 s
r ead::r for a ne\; Eoover Cc:.1~·;1ission . }Ie m2.de t 11e :£'oll0'".-.ring su3ge st :=-.0:1::
Y(n.ich wo"'..lld in his opinio:1 str~::Gthen the go-,.:""e:!."'nt1ent ' e. c.bi l i t~.- to de cJ_
·with tl1e urba!:t crisis:
1
b.
Group functions together as was done in t.he D:!fer1se :r2r, urt~n·:::rrt a~1.Q
Coordinate from above:: .
cutting of pro ::::rai:13 Con':! by the Burer·.u of the I,~d ge t .
would pl(lll &:c.d de·-;elop :;:>rogrc.:.1s f:c-0:1 •,·/ hi cl1 _t-ll·.-: i>::--c s!.d/:~n t cov.1. ,::
select the rcost useful . T.he a.dv~tr.\ced. I>lennj_ng futh~·t.ion of t ~:,~
execut:L-:1,~ br:~nch s hould :1ot. co6e u n d\-::j_... ~~he Eu.re au o f th e 5-J d{: :·: ~~
bec au.se it s}1ould be done o·J.t front nn1 n.\')t t e l1ii1d clc st.:d Cl.Oi..:i ~·s .
4
d.
,
}'u.r1d a.'1ead so t hat. tl1e a,;encies vron 1 t have to b es for r::or~~\ Y 2s.c h
,rea.r .
e.
Create a rnecha!1:i.st;t ( su.c~1 a s a l oc2.l coordinat o2.. ) i.Ihicll -:: sx! .Jv.-::.~u::
all the tool=· avails.Ole and fit thern t O th2 !le eds o f ~.oc2.l.
corrll--nuni t i es J:"CrtC..er than --~:"ice v e:csa .
a genius at i.:.he loc a l 1 evel
federal pro grc~c.s .
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how -c. o t ak e ad·..- ::. .:i.1 tn~_; ,-- of
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R.ole of l abor i.n r e\ri sio!"l cf t:1e c:Lt~--- .
Ee :::.aicl t b..: .:.t eleven · \.1..ni cr:i s c..r c ~)2r tici~)2.ti:) .~~ . .:.::-::l
cre a .J(:. e Q a cotins.il 2.::-id have do:·~e cu~:-i e.x citi nc; t l1in[;s e. s hoJ.O.i.n-~ .::! l sr_;:::-:·- 2
2uJ.d build i ng p l ayt; ::'ol:;.n ds .
Se nato:t Ke:--~11eCy wl;.:.o .·tas not present ask8d t h.~cu_-.30.. · -L~e Che.i 1·tt~2.n -..:~ ::;t:.};e; ~·
!1:r. F:-~ ut~er \-.1:1.s in favor of Co:·:~~rJ..;] :i.ty· DeveJ.o~:tn8nt Cor i:. or-2..tions c.t "Lt .~:
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l ocal level . ff:Y . Reut:1.er said he is very much in fa,,-or of theL'l . :S:e ,:e..,ts
a N2:tional Corporation to work with the total probler.! and t o 02 bc:.c~ed
u p by local corpo2:·at io!1s .
6.
National Nor.:profit Housing Corp orc.tion .
Senator Ri.oicoff said that the only person· he could think of ".,ho would
be capable of a ssemblins the r.ecess ary leve l of representation fror,
foun c.ations , u__--i.i versi ties , l abor , fin2.nce , ir::dustry and ot::ie:::- fields
to participate i:1 t he n2.tional c or pora .:.ion 1 would be t he Pre side nt .
The Senator said t!lat he h opes t he President will consider ti:-1is :_;;ropc s2.l .
0
7.
Ho':-r to avoid continua tion of c. ,,.;e lfare sta te .
J
Consres s ma..11 J ames Scheuer ( D - N. Y . ) who was present at th:; h e ari ngs
asked Mr . Reuther hm; third genera tion. wel::'Etre famil ies 8Ld :9:.·ec.ictc.':)2..e
drop - outs c 8.J.'1 "be avoi ded . l/,r . Rc1.:the r said that tne recc:r:8 2nci.at icns
made by tr..e ~ e s idec1t ' s Cow:1i. s s i er:. 0:1 .114cr..2.t i 5m s:1ould be i tr:_pl e,~,entcc,.
"'1 - e pror:-""""
S' 7 E: '·'n e - r,-,on
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-o :..- :_··.~, ince n::c i ve s 1 sucn as e arning out. s i de mon e y . He t.!1.lD:~s tna t a re c i :,ne:Tc s:-,01:.:..d.
be allowe d to do this without loosin8 his welfare ::;:,ayment so tha t the
person will aspire to living on a hit:;her pla.ri.e . ·
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Mr . Re uther said thc.t a.ri.other wa y to avoid a welf are state 8..."ld put
people to work is to have a s t.,_nd2.rdi zed c o::-;:;,'J.t. e:::-' z ed e;n:::,7 o·-::::cr.,. n.:- ·
At p re sent 1 Mr . Re ut h e r clair:12d 1 ttie :.:"i 1· c,y e;1 c,rei:criect s--ca--:, 2 syste:,,s 2.·'.·-=
obstacles t o the setting up o f efficie r:.t c ctT::_:iut ers ,:hich c ould m2."'.:.ch :.::-..
une,·a:;,loyed p e r son to a job withi n a r.:att er o -: r:,i nutes . i,'..r . R2u t h e r
s aid t hat the whole p e :!: son 1 his hobbi es a s we ll 2.s h i s ski lls , is n o".;
ta:~e n i nto account u..r1 c.er the p r e s e nt S'.:. at e systecns .
8.
Missin p; e l ement
in the s J.uc:-1s .
Conbressr.1an S~heuer asked what i s ti-!e missi;:r.t3 element that has no-r, ce .:::n
u sed to h e lp the cit y and ,-:heth e:..- this ele,:1e ::1t i s r.10:ce suLoidiz e c1 :10L,s :.:-.f/ '
Mr . Conwa y s a id ti1at on e r e a s on the gov e r nrr.8:1'-:, h as not h e l p e d · enou gh 5.:..
subsidi zing h ousing i s that in t he. o e:;i.nnin c; EBJ,'A was a f i n2.11e:ial i r. st~.tt·.~-:'..r.,.'.:.
macle avai l abl e fo r p riv at e i r.dust,:y . He said that the A;;,e,~cy '.-ia s n ot :;,0oj:::. ,
o r i ented.
Change in Witness s che dule :
An t hony De cha".lt , Presid ent , ::-Io.t icna.J_ Fc.rrr.e:r:s lin ic::-i '., i l l not t e stify c ::-.
Tuesday Deceuber 6 . D~-. ;-/ill iac!l Dcebele , Gre.c:.u 2.te School of D:::sie;n ,
Harvard Un i versi t y w2.s shLfted f r o:n \·lcdr:esda y t o 'I \ .:.esd.8.:f L:,s-'.:.e.s.d .
I,Ie l vin Thom1 Ne.ti o r.al I ndian Youth Council n B.s been 2.dcle d. ·co tbe li s t fo:::Monci.ay , December 12 .
M<::r:i'.)e rs pre sent:
Senator Ribie:off
Coc~ressr:!a..'1 J ames H. Scheuer ,
( D-:'TY )
�I
ITK.~S O? I !"'U'2~S-~} ~Cl.)/l!~l; ~C; · }0)~ R:\ISE!D ;.\'r }f.SP:.Rif\TGS
OF RIBIC ()?:f' su:::!C:-=-~ii·:?~~- c:-; E(_ECU-:r·rv~ RSOl~GJ:.~TIZ..6..:J~'I0:·-1
December
6, 1966
( Morning )
BAYARD RUSTII'J , Exe cutive Director , A. E.i,ili_p ·· Randolph Institute
Mr . Rustin e.ttrioui:,ed r ecent :nEJ.r2ifesta tions of r a cial conflict to e.
n at ional sh or cage of jobs , educational opportu.,.'1.i ties , 2.nd housin; 1 which
c reates the fee.r tha t j\iegro advances will prove detrimental to w:C.ites .
He urged the adoption 0£' the proposed 11 freedc:;i budget" so that sc2. rcities
i n the fields of e;u.ployr.ient , ·housing , 2nd educe.tion ce.n ce elimins.ted .
An econo~ic and sociolocica l ana lysis of r a cial prejudice and e.lienation
c ompels the concl usion tha t progress can be achieved only tbrou--3;h a
L'l2.ssive n2.tional commitment to t he :i.r.iprove;rrent of urban concli tions . The
IT:.atn p oints r a j_sed in the testimon y 2.c1d the questioning period were toe
following :
1.
The Effect of tl, e Eousin3 Shortage on n~.ce Relat:i.ons
Mr . Rust:i.n stress e d t:1. e ir:1port,2.nce of ass uri ne; all inco,':le grou:9s effec"-:.i ,:e
a c ces s to tte housi n3 rr,a r~ e t . He pointed out that the existence o:f h oi.;.s i n~
scarcities l ea ds wni·t.cs to support re st rictive prac tic es 2nd f'orces r{e[,;ro-2 s
to l j_ve in substanda rd hous i n.3 .
2.
The Fa ilure of t he 1,:::1 r~-cet ?-'.e cha:1.ism
Mr, Rus tin support e d the view of Profess or G3.lbr2 ith t ha t socia l and estbe~ic
values should have prior:i.ty over fin anc i a l c ons iderat ions in urba n develop:nent .
A . FrlILIP RAJTDOLPrt , President , A. Pnilip R-2.ndolph Institute
Mr. Randolph ana lyzed the probl em of winnins politica l support for the
11 fr eedor:i bud2;et " appro::'. ch to urban prob l en s .
He decl a r e d t :C.at 2. c caJ.i t ion
of libe ral el ements could b e fanne d with s,Lfficient stre: Ds;th to ·,ii.n appro,:a l
for t he expenditure of $185 billion of r edera l fu"lds
..
over a period of ten
yea rs. Th e r:12. in poi n";:,s r ai sed in the testiJ:iony and cluri:!:lg the ques tioning
period 1-:e re the followin g :
1.
Tne ~ i'fect of Fe der2.l Hou.sin~ Polici es
Mr, Ra ncJo1:Jh asserted tte~ FeC::e1-e l prog r-2.2s have subsidized housinsi; fer
persons i n the r:i iod1 e and D.p~e r incc,,:e gr01...r;_:is to the neg;::1.. ect of t he :poor.
The fli ght fro:n the c entra l ci ty to suburbia ha s bee n nac.e p ossible l-i;yFedere.l e:·c-peudi tures , whJ.le a nuch s ~,a.ll e r c:..:ilOUci ::, has gone t o provide
t h e p oor wit:1 hi 6 }1-rise se;rese.ted bousin3: projects. ?-Ir, Rs.ndcl ph noted
tD.2..~ t!:is cc~cli.lsic~1 ~. ,~::.s se-'.: foi-t,':: i:--! tl!e :re;:01.,. ~ cf tI":2 1,.;}1ite }Ic-usr:: C::r:_~~2:r2:-.~c:
on Civil ~ights .
�,I
. . ..
2.
2
The Heed for Planned Soc~al. Ir..·,;estr,1ent
Mr. Randolph advoc a ted the adopU.on of a program of planntne: social
investment in urban develop,ent rather tha n a counter subsidy for l ow-income ,- ·
housing .
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su1,:~~!ARY O:-F' E:~Ar:r:;Gs EE?0!--3 StJ2,:;c1-:2·-J143.215.248.55;'l-; ~;E OI\I ~8XECUI' IV3 ~-:£:C1RGAT:IZ..D/?I C-i~ .
0? j,iflE SEi.'T A'I '~ CO!,:.MJ.~. I '2:S 01] It{T~CV'I'~Vi PJ~ORGA~:IZAT ~:or.;
Stibj2ct :
\r!i tness :
Geru.ld I..J - PhiJ.lippt.::, Sh-=.irr_r.e. n of t!1e 503.rC. o:f t !1e Ge ne:~ 'aJ_
Electri_c Co~rJnt1y
l"~ r . PhillJ.ppe se.icl that GE !~eis 300 , 000 e:--i~r l oy·ees j_n the TJnj_tea. S ta tr~s }
I.'10st of v:[101r! wo~ck and 1i,_...e i :--1 cities. He said tr13.-t , 3.s u con se (luc~ t! ct":: ;
1
his c o:r.r. any 5.s deeply cor1ccrned v;ith the ,,,tell - b e ins of cities ar!d
the people who J.i ,.re nnd \.,:ori-: ther,2 ~
.1.·, ...
}!e: tol.d the Subcoi'~nr:ittec tf.:at ti"Jc .re:i10di e -.-; 1-:-e
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pro"b1er:-1--.-s of the ci t:Les :-;~ust. cc!"..:c; t:---;rou3h tte c:cer~.t :t . ~,.e. j c.~1!:.dr;~ c:-Z'
public and private r esourc es to ucl::i.eve wr.a t ne:Lther c~:::-1 concc:d.·vc:..:,;.. ~.r
do a lone .
1•·! r . F.:1illippe pointed out th 3. t t ndus·try contrib1.1tc.: f~ to the p :tcbl e-.~s
of th e cities t!:-ircugC tlle disposal of u_'fl-,;:2.nt e d \·;=1.::., tca £1~1::l. t. :rn:t'.:Cic
conges ti en ., resul t,j nt; f ror:1 r11c':..rer:.: ent o.t i ndu.ztry r.s go·ods e.~tl 1::c c.1;1 .~.
0 ~'1 the othe 1~ h and ., it1c~t:stry is a r~a. j 0 r vie t i !'J of thc~:3(~ ;::.a~:~:2 p ·~·ol·J_::: ~:-.; .'3
·t.eca1.1se it, suff ers ad6eci cos t ~~ frc,l:.! traff ic con;~es~icr:1, 2i1. p ol.11.r"c .lo:1 ,
\·tater ~pollution e.nc1 v.::.nd.2-..lisrn .
f-1r. I'hilltppe listec3 t he rl1:l j o:r· c o!:.tribut io:1s 1:)e j_ r:c r;r-:::!2 b~r G ~~ t o
teln t~nnrove c:i.tie s : P-.:c,<: u.::tio~1 of h i&,::'; - p c rf or:-r:.:-} ~1ce ec;._'..:.~r~~:e:ni.. f'c:.. .
f ast tr-ar:s i t tr2. i n r. , rr.:. ;1u.fa~t·u.re of GtO=-:!ic -~~c ,. .#c'!r·::d ;~en.e:c.2. ~j_ ni; p12d ::.s
-{ii~~e d~-c143.215.248.55,_.,;~1143.215.248.55;~$ t~~/143.215.248.55e,~r143.215.248.55 16:57, 29 December 2017 (EST)'c·!~~e ~:~
143.215.248.55 16:57, 29 December 2017 (EST):~t;:: ~~::~~:143.215.248.55 ~!;/~z
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Irf:o~por.:1.t0 cl.J }#J a v e f oy-.·. n~d Ge!l.e:ra.l L e~J."c.::. n::: Cox-po;.. .at ion cs
2.
·,~oir1 J.:.
vent ure to f urthe r -t.Le ec:u.c o. t.ion oi· dis:1.G·,.re..at.e.i:::cd pers c:•nn .
GE ha s t entat ive pla ns t o c r eate ent ire143.215.248.55 citi~ s .
A CC·l~.ri~ur-Li t :,r
Syster:--:.s Deve.lo;:tent DI \-~s:i.oL t as
1. Ch:i.n~; es i n· the bt:.ild :i n[; proct.::~1s tL1rC) u.t;h t he 2.1:1:~,:.ic at icn of r c~;,2;_j_ :_,-·e:L
a~d e n~ i nee:ri r.ig t o c~esi~.:-.1 eJ.ect1,o -:1~tec:.1r~ nica l e o1!~·9c!11::~~rt.s t ~·.:D.-t.
de lj_ver b~::tte r IJerforr;-~~1 r.:cc and J. o~·:e:c - i~1 - p1.:1.ce costs.
2. Util:L zi~3 a. r.; yste:-:~s pler:n i.1:.c ap::,_ :cco c: h to a t~ ~iel~1~) n e ·,.r p:cvto:.y-,::·,r;
cc~:r:21-1.ni t..i_es 1::..:r..:';e eno·1 ch to s··,._,_ppo r~ a fciJ.. c.:c;;1p.l{?.J ,:2:1t o:::·
mtmicipal ser•...-j.c es ,.
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Mr . Ph illippe s a i d that wor~c by GE scientists and i n f orma ti on spe cis.l is t s
has led to c ont ra ct s f or s tudies on appl ying sys t e ms analys is t ec hn ique s
to ov era l l u r ba n pla nni ng ; to inte g rated polic e , fi re and ar.!°bulanc e
c ommunication networks e tc .
He sugges t ed t ha t t here be mo re and b ett e r c orrmur1 i c a tion 2.nd coopera t i on.
b e t ween bus i nes s l ea de r s and political l ea dc::rs i n see}:ins t h e sol u U.0;1s
to u r ban p roblems . He t hen des cribe d di ffer e nt pro j ects in wh ic l1 his
c ompany h as pa rticipated. He al s o sa id t ha t r.iore ext e n s i ve re sea r :::~1 is
n ee de d into the dem2. nds of th e city . GE i s wo r k ing to disc over h o w
i t ca n effe ctivel y apply to cit y p roblems what ,,a s l ea rn e d through its
part icipat ion in sys t ems development for t he de fe nse a nd the s pace
prog r an:s .
TEMPO , a GE c e nte r in Santa Narb3. r a , Ca li f ornia , h as a n expe rimentc.l
program with th e City of De troi t to int r oduce prog rar.1 pa c k2. Gi n.s a nd
budge t ine; t echn iques l ea r ned t broue :1 its c ost/ eff e c ti vene ss work on
De f e ns e De pa rtment problems . It i s a lso working wi t h the Uni versi t y
of Minnesota on an expe r i ment a l city pro 6 r am to b e b uilt n ea r
Minneapoii s .
On e big c ompl a i nt wh i ch .Mr . Pb illippe ma de c once r n inG present c ondi ".:, i oYJ.s
wa s tha t b u i l dine; c odes or hous ing c o·des , ele ct r ica l or plurr.ci:r..g c ode s
do n ot promote e f f ici e n cy i n c onst ruct i on and e.r e , i n f a ct , ins t i tut i o:1:.11
i nh ib i t ors to eff i ci e ncy in r ebui l di ng our u rba n areas .
He a l s o c r i U. ci zed p r e sent gove r nme nta l policy i n r e 6 a rd to the di st1·i ou ti on of pa t e nt ri ghts t o i n v e n'.:.i ons a ri sing out of r e sea rch a n d d ev l'! l op me nt carr i e d on by private i ndust r y , but fi nanced i n whole or in pe.rt
b y the Gove rn.rne:1t . He s a i d t hat pre sent pol ic y disc ou r age s p a r t ici p3. t :i. on
b y p ri vate i ndustry .
He approve d of f a nning ne w type s of c omb i ned publ ic and p riva t e co r po r a t ions gea r ed to r.1ceti:1g urba n ne e d s , b ut di d not f a vo r a COJ,·'.SAT type
of corpo ration . He b el ie ve s it would b e b ette r t o ha ve an a£en cy 1 ik e
1-TASA, wi t h a n acc e pt e d ob j e c t i ve f or the ~e ne r a l p ublic . Ee s a id u~is
i s a socia l probJ. e:r. a nd s hould b e k ept i n t he n onp rof i t a r ea . · In hi::;
op inion , r e habili t at ion a nd low- i ncor.1e h ousing i n g e nera l are not
a t tra c t i ve t o p r ivate i nves tors . Be s a id tha t Thoma s Paine , t he
ma na ger of GE I s TEMPO o r ga nj.zat l on , is urein~ c r eat io:1 of a n Urba n
De ve lov 11e nt Corpor a ti on t o buil d f i ve millj_on ne ,r h ous i ne; rn1 i ts in s L ;:,1
area s over t h e next de ca de a t an es tima t e d cos t of son,e $50 bil li on .
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Fi1il i p }1 . Ha ll e:-1 ., ?1·2s::_ dent , I,·~3·ur:i. ce :Fe.2.k r,;E:dico.l IT\.t:.16. ,
pj_tts btlr[)! , Penns.yl v2niH .
Mr . H:--ill e~ told t11e Stlbco11:;:d.tte;~ th::.t tho:::! poteD ti2.1 rol. e for tf::;;
sn1alle:r f'oundnt.ions i n th·~ Un:1.tcd Stn tes 11~'"~~ :r1ot yet ~et:::!J. t a ~~}2d
in relation to the urban condition .
He sugge s ted th2. t the ~lul)cor:!.."11itte i::: or t-;o::ne otbcr app rori:r:i.atc .::.c r~ n c~/
shou.J.d co:i.1.vent:; at l~b.e nGtJ.ona.l level a. ;,. O·rl,: ing confe~cc:nce on the c~. -t ,:;is
in t'b e c:Lt ies ) invit:i.nc as r:i.n n)r of the sr;:a l lc:1. fo unda.ticr:s 2-s c ou1.. f~
b e i::-1.:~er ested and induc ed in"'co a.ttendi112; s u..:!h a session .
In i~·r r . l!n1 le~ 1 s opin:tor~ ) by u:t J.l:i.zinz its freedorn ·to a,c-~ in S\l~J ~_·, cr~_,j_·:1,:.
and initJ.ati.ng sol.utior.ls to the 11rbc..:r1 p~obJ. e~-:ts -;,:b ic h n re r : :-! s: :143.215.248.55 :-:;.~~ ·::.
to action l:;y ex:i. stin.::; r;ublic a e enci(!S end i n~;t itut.j.on.s, the ~--c.~c:c\t ~_c ;·;
ca n IJOint out r;rove:n pu.ths for soc :i et~,r to folJ_c~v .
Senator Ri b:i.c of:t ...,. a s vr: 1...y inte1·es t t~ q. J n ;.:fly 1Gcn li t.ic~s 1-:c :·:.:p
e.nt1q u.:.:. te d -ouil d in.:; cod~s . }Ie s a i d :.r.o t n(~n rly eveI.'Y w1-;.:.:-;r.~s~1
so f a r <lur:1.ns t.l: e h ea r:i.n£.~c; };a s cc1r~·:;J..9.:i n t: d ti.Uo;.rt o;:,::, o~!.. c t. e
buil dinc c ode3 . I·:143.215.248.55 . F.:·.ij.lli p pt~ f:,ai d the:. t, c.:E: hr1. s two r:1en n~:;k i n:-;
a s t u.cty . of t r1.1 ildin;?; c adet; ri,.nd t.11~:::,t i n ex~1lnini1·1[; ~hr~ .:i e in c,:_c};
of the 50 stnt2s t bc::r Da ve: fo 1..1nd tha t t h e r e };..~.\-e 1=-eer.i :.1. cr ::;1..J~·sta n ti a.l t:ff ·:;.r t.s rao d':~ to l~p ~datc th e:::.e code; ::, . L oc-:1 1. ~Jr:o:q:l. {·~
s e e:m di s inclined t o ri.18 k e chc.r1 _.~;es 1-.ec r:.u ::_;e t r·1e:_.1 n:a~r ; i:i -:. ----2 t ~) l E"·::~.!~~-~
llG'.iT s1-~il1s ~ l o c a l poJ.it.5.c::tl :i.n t. c:ce~-; t s a r e op~}C~~;cc1 , l aOo:(' ::"':-:-.cto::-.-;:;
come :tnt o lJla. y, there is z:.:;i ine r t:i.::i in t hj.s eree., 8. :) d n:O:?t
c iti e ::; ha ve pi e c e;·!1cs. l rJo.lj_c:i.es o:f -pur.·c :1-:!. si~[~ ·
It ,ra s a g r e ed that th e j)0rno~1st. rnt. j_on s C.i. ti c:: s i\c t ~r~a y brj_ n:: n~: c i...~t.
so:ne !)TOgress in thj_ s area. b ece..1.ls e of the r\=:qt:.ir·:::::-~1:.~n t. :i. n tJ1i:!
Act t ha t t h e citi es hRv e node r n ~uildi nJ cedes in order t o
qun.1:l.fy for a::;s i s t a nee .
1
Sena tor T~ibf co:2f" i.:.skt~d wltG 't.J: e :r a vas t t ax 1.,t ri tr.: -o f f f or a~:.i t -po3-l u tior! rr,ec s u r0:: s w·o:J..l c1 b e :=:.n inc ent,i ve to y1ri ·vc~ L<:! ). 1i dus ::.1·y
to t..ake st. ci:,~~ in "'L h:Ls d j. 1·c;(:: t :i. or.1 .
Jv:r . Pil i l J..i J;te t~a i d ::.1~ -..:o:J}_,:
encoura.fe p r :L -:r at c effo1. . ts :L:1 th~t :f i eld . }Io·,,rev·~: ::· ., t h (: re:~·J
p 1--001. E:rn i s t h~tt Jt l. s no~~ ei' Zi.c:i. ·:=.:::-jt t c, e.dd t o o l d ·1::.,J.:-,t-:l°- 3.
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wou1c1 b G Gette r t o -bu:1..l d r-;ev.~ pln:1.t~3 wit}1 z.!-l':,-, t - po]_J. u·~.ion _f\ ~~ t :~j-•,;,_;.,
bu.t i t will ~ B ~ ~e a l o:r~i~ tlr,:e t o r c~:pl a.ce e x i ;3tj 1;.~:; ~1l.z :n:t:.2. .
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SE:nator }Cenncd:r o.f :f\:(~w ·yorl-: ':",; as ext:ri:::::i--;11;:ly i:1t,2rc-~stf:d. j_:-i t:c,yit tG
to get pri v·a te i n 6ustr:f to buJ.1d pl2.nt.s in sue!~ 2.r,::c.s ~.:s ~i:1. :rlc::::
and Bedfo~... d - StuyvE:s .:1.:1t. fa_:::ter r:·.u(~h qt~es tic..::rLjr;:2.: --' ttc C>s.i.:t·1.-~~-"~1
o::-. GE fi~·1 0J. l~l ad:nitted. t~.r.lt his co.~.~pany '.-.r o uld ncr~ ·be i n~:(.::rrj~;t~:·. i
i n l ocat i ~1; in such areas bec8.t.1se of ·the foll c·,\ri:-1i di 3 a _d-:tc.1 11 t :! .; ..;:-; :.
1.
\-!01.Ud not G
2.
~·Tou..ld 11ot" Oe clos e to s1.1p~lies and n~a teri:3.ls .
3.
? he clir:--.8.te wo1..D.d nc,t be c.ttractt~re becaus e of rio·~sJ l a ~·C.::
st r i.fe , etc .
5.
It is too h8.:rd to 38t goods in and o·,,t t)2-c 0.use of tr,~ff'::.c
c ongesti_on .
6.
r..ri..n:J.
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c entr8.l to a 1r2 .rket fer the proQuct .
costs are too ~j_gh ana. 1 2.r ge enough arc.-·.f3 \·tO"l.Jld r~0i.·, : .:::
a Yo.ilnb1e . . (IIe s a i_d t h:J.t Gl~ :ts not inte.res t.~C. ir-.. c o~ t :':'. .r_:;c- - t~y;~
indust. rJ'" wJ:d.ch i s ca rr:i.:::d on in the c:ro-.:.. :~e d cou.:ntr~_.. of ~ ·c:;.):·.. ~1. )
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J,!:r . F·hilli1_"")pe sc.1,:i.d tr~at, GE ·ha d a 30 -y2ar-ol.C! :;1lc.nt in Q. Gb et tc1
area ,..r ·tich it iv·as r ecen~:.ly fo:i.---ced to scJ..l "'oc:::a·J.se of' tt:~e u:.r:-e.r:--.~i~11:~:-8;;·.:..3
~nc1 h:?.. :rdch i ps , He would not n:·ui:ie the: loc f.i 1::.:Lon , · End r,old ;::,:~:ea t·.o.:.'
1{enned~/ t.b a t he 1.-.1oulcl t ell. hir!l -::he 1 or.;(1..-tio~1 in pri ve te. Ee 3~·.. j_~
tba t sc:nc of' the t h in_ss . ,.,;l:i.c}1 :1 ~H1 h2.y.,y,2 nE: d to the pJ.2:-r~~ \:e~·e \i ·:·:.:.-y
ur:u.smJ_ and thRt }J e had su.r:·ert:d TJerso::a l unple£::.s.: ~.:1 t, e _v~pe:ci e ;~ e: ~. . ::
·w hen visiting t he p1ant .
/tl th ouch Se~at,or :{enned;/ c o::i ..~ '::ndec1 t11n t t ·l1·2 r ~~ wcuJ_d t ,-:-~ a n
unta.pped rna rkc.:~ for \.TO:cke rs B.!~d cooC. s .in Stlci1 an 2..r~~.:::. -~ t te C~n:·-:.:i. l"'J::.:~ r:.
o f GE s e c r:1cd unconvinc ed and ~..ro ~1ld r\ot e-c;r2e t!:2.t 1:.is C·::.:-:--~·1_)a.~1:.· ·
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ml gh t be interest ed in locat inc in such an area .
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OF '.!'EE sr:=·~.\'I'~ c c:.:-=:TI':Z::: o~r GO'JERI'J-ZJW OP'.a.::R6.TIOHS
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Afternoon Session :
-~
BRUC6 P. F.AYDEH; Vice ?:resident; ::ort 6ase 2.nd Real Estate J?epart.ment,
i Colli'1ecticut Gene:r3.l Life Insurance Company
Mr. Hayden defined the c onditi on.sunder which life ·insurance corporations
_and other bus inesses could increase their participation in the urban
r edevelop:nent process. The ex.te~1sion of Gove r!l.ment financial assistance
programs to profit ventures as. well as nonprofit organi zations and the
effective exercise of t h e planning and coordinating function on the part
of Gover.ruaent were des cribed as necessarJ to the achieve;:;ient of greater
business involvement in t h e reouildir..g of the cities. The main poim;s
·rais e d in his testiraony and during the questioning period were the follo wing :
1
l.
The Weakne s s of :n orrnrofi t Ventures
Hr. Hayden testified that d eveloprnent efforts unde rtaken by nonprofit
conc erns u sually r esu.l t in f a ilure due to P. J a ck of knowledg e and experi ence . The tendency to l init Gover Th7ent fi"'anc i a l support to nonprofit
organizati ons is thus m1desirable .
2.
The Gathering of Housing Costs
}Ir. Hayden stressed the importance of r ~.?~e?in~ the divergence between
housing construction costs and gene:r2.l price levels which force s builders
to t olerate lmr quality work . The contimstion of r eli ance upon ea s i er
fina ncing arrangements will p revent a soluti on of t he costs probl em .
3.
The Or ganization of tl"e Attack uuo!1 Urron Problems
Mr. Hayden sta t ed t hat an agency should b e c reated with the r espons ibility
for mak:Lng a tota l systems approach to tbe problems of urban housing.
Such an agency could b e orga nize d along the lines of either NASA or COl-.SAT .
JAMES W~ ROUSE; President; The Rouse Company
irr. Rouse descri bed the steps taken to plan and f inance the Col umbia project
which involves the de velopment of an entire new city within the next l 2
years in an_area midway b etween Washj_p.gton and Bal t imcre . Tbe expe rience
of t he Rouse Corpor ation and the Co;:1ne cticut Gener"--1 Life Insurance Ccnpany
with r egard to Columbia can b e applied to the reconstruction of t he c entral
c ities ac cording to 1-il' · Rouse. The ma j_n points raised i n hi s testimony
and during the questioning period were the following:
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The Need for Concentratic~ of Financial Resources upon a Single City
Mr. Rouse suggested that all urban ·renewal and -demonstration city funds
should be utili zed to accomplish the total and successful renewal of a
single l arge American city. The country needs to be convinced that
urban problems are capable of solution.
2,
The Place of Profit Consicerations in Urban Redevelopment.
Mr. Rouse declare d that the construction of new cities and the reconstruction of old ones so that the real needs of their people are satisfied
will b e a profitable enterprise. Once the market success of well -planned
development projects is established, the solution of the nation's urban
problems will be possible.
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Afternoon S e ssion :
December
6, 1966
WITIIESS :
Lee Rain1,,;c1ter, Pro fessor of Sociology and /mthrop 0 log y,
W2.shinc_:ton University ( St. Louis)
SUBJEC'l' :
Poverty and Deprivation in the Crisis of the A."llericDn City
Professor F:ainw':iter told the Subcommittee that until we make really
s i gnificant head~a y in solving the poverty problem ( and thereby also
the probl en;s of race and ~thnicity ) it will prove irr.pos s:i.ble to plan
urba n enviromr.ents in a r 2.tional wa y, in a way tha t is useful and
sa ti sfyins to urb3n populations .
He sta rted by desc._:ribing one particular lowe r c l ass Nc t:: ro crn:unun ity
wh ich , with a d ozen colleaz;ues , he studied int e nsively for th e pa st
3 y ears . Thi s i s the Pruitt-Igoe Housins Proj ect in St . Louis.
Built in 1954 , th e project was th e fir st hi gh-rise public h ous:i.ns
in th e ci ty . It cons ist s of 33 e leve n story sla b sha p e ~ building s
f csigned to provide housin~ for about 2,80 0 families . At present,
it houses about 10,000 t~e 0 r oe s in 2 , 000 }1ouseholds . i·Thnt s t.a rtr~ d
out H S a pYcced:::nt-o:r·eak in3: pro jec t to i: np r ove the live s o:; the
poor in St . Louis , a proj e ct ha il.ea n ot only by the loca l ne~spepe rs
b ut by Arc r::itec turo.J. Fon.::,(, h2s b e c oue an em'oarrassmen!.; to a ll c on c erned . In th e l ast f e ~ y ea rs , t he proj ec t h as a t all ti1nes ha d a
va c a ncy r a te of ove r 20 p e rc ent . News of crime and accident s in
the proj ect nakes a r e 6 tLl r, r appe2.n:1.11c e i!1 the ne·.1spa pers , e.nd the
words Pruj_tt -I g oe ha ve b eco:;1e a househ old term for t he worst in
ghet t o li ving in loue r class Ne.:;ro h on,es , as we ll as in the larr;e r
c orn.mun i ty .
Prui t t-I goe , :i.n Professor Rai:l'.,8.ter ' s opinion , CO!1denses j_nto one
57-acre t:r-a ct a ll of th e probl e::;s a nd diffinilties that ari se frorn
r ace and pove rty, a. nd al l of the impotence , indiffere r,ce , 8.n:l host ility
with whi.cl: our society has so f a r deal t with th es e problems . Processe3
that are srn-,,e tines beneo. th the surfa ce · i n l ess virnle r.t lowe r class
slums arc r e2 dily appB-rent i n Pru i. tt-I 6 oe . Because PruJtt - I g oe exists
as one k ind of Fe de~ n l Gove r n~e n t r esponse to the probl ems of pove rty ,
t he f a il u r0 o f that r espor,se ,,,ill pert2.ps be of pa. rticuJ. ;:;,r int. ere3t
to the Co1:u:dttc e , Professor nai ff,·T~tter s a id .
P1·ofcssor Ra inwa t e r brouz.)1'..; out:, tl-:e follo·.1i .n 6 facts in. r eca rd to
. Prui .J~ t-I g o 2 :
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All tr~e wh i te s h e.v e !,:ov e c1
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and th e po p'Jla t io;-1 is no·,i a ll I:egro .
2.
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'I'e nents , tl-,e:r0fore ,
Frosram .
h:;.,..-2 ~
t h ings out of wi ndo·.,rs., hur~:i :1;
j2.,J.ndiced Yiew of t he :publ i c Hous i ng
P1~ofe3s or Raj_1!-,ia.t e2."" 22. id tfl~.: - i1f2 r1ust s tart with a.n unde rst2.ndi r.g
c f ',!hy l c ·, rer c le.s::; ::. i.r'e i s tn5s '...'e.Y . He beli eve s the lower cla s ses
ac t - this wa y b 2cD.us e ci:f L ro probl ems :
1.
! ~a bil i t y t o find ~ork and adequate pay .
2.
Beca u s e of lc1 ck of fi n?. .!1c e s , tr:ey live a mong other indivic.;.~el s
simi l a rly s i tus. ted , ind i v :Ld uci.l s wh o , t he expe rien c e of their
daily live s t es che s t hem, are da nc;erous , difficuJ_t , out to
e x pl o i t or hurt t hem i n p e tty or si g n i f ica nt w2.y s . And the y
l earn t hat in t h e ir c or:-;:iuniti es the? c a n expect bcil y p oor ai'1d
i n fe r ior se r v i ce and protect i on f r om such i nst i t u tions as tte
p ol ic e , t h e CO\u-·::.s , t he s chool s , the s a nita tion depa rtment , t h e
l andlords and tr:c rne r chc1n'.:, s .
Professor R2.i,1wG t e r c o,1tem1ed tl1a t effort s to sol ve t he . gen eral
proble ms of u rbc1n rr.a,;'?.;cment will forc ·, e r be f rus trated , o r a t l east
much , m1,;.ch rr.ore c os t l y without 8 solut i on to the p :: :oblcrn of p overty ,
bot h u :c'c6.n and r ul'al .
He p:t :iposc j c hannel i ng nation'3. l incc;:;c ( po.rt i.cul arl y the yearl y
i ncrem2nt in nntion':l.l j ncor,1e ) to f am ilies in the lm.rer thirty to
f or t y p e r cent, of the popula tion so tha t a fami l y i :icomc: f l oor i s
estab lishe d which i s n ot too far b e l ow the med i a n i n come for
Americ a n families e.s a ,,,hole .
Professo r Ra i nwa te r t h inks that there are 1::asic 8lly t ·,,o stra.tc 6 i es
i mpl i cit in the va r i ous p roBra~s and s ugges ted pla ns for d oing
some thi ns about pove rty . One , by far t he most entrenched a. t pre sent 2
might b e c a lled the ser-,,ic e s strat::bY , an d the ot.h er the inco1::e
stra t e 0 y .
In hi s opinion , t he p r oblem with the services appr oach is t h a t to
a. conside rable extent j_t c a. n:ies t he l atent assu..r.iption either t hat
the p oor a r e p ennan cn tly p oor and th e refore must h a ve spec ia l
s e rvic es , or tha t th e p oor c a n be chanzed (by l ea r ning productive
skill s , b y l earning how to u se the ir r,,oney more wi sely, by developinc;
bette r at ti tudcs , etc . ) whHe the y are s t ill poor and that once
t h ey ha ve c hs~ged the:{ will th e n b e abl e to c1ccor.1:pli s h in ,:e.ys t hat
wiJ.l do a:.ra y with their poverty .
., ·r. .
�,
A s econd pro':Jle:;; , ::e 132.icl , witr: t !~e s ervices a ppro::1 cl1 is that the
priori ty of ne~ c1s of tte pvOl' is c: s. tei:;Ol'ice.lly est.2.blished when the
service pro6 :car.:s a re set u~ .
An ex::rn,ple he descrj.bed j s tha t ti-:e Federal puoli c housi ng program
prov ides 2. service to eac:1 !",cus e;10ld in Pruitt -I goe in the fo rm of
a subs i dized a p?. rtr::ent t.}·.~t c c sts ab out $545 a year . This amotLrits to
a fifth of t he ~ean f auily incoxe of the tena nts in the project .
It is v e ry l i1,el y t !'.!3.t fr c::·:; t:'1e point of vie'.r of the needs of n,any
of the f amil ies who live in Pruitt-Igoe t ha t $5!f5 could be put to
much b etter u se .
The Professor said the.t those ec:ono:dsts who h ave pursw,~d thi s line
of thinking in studying t~e probl em of pove rty have suggested
the inc ome s t r<ltegy ree;ui res t:-iree ele~iic: nts :
A. An agg r e ga tio~a l a pproJch --~hich i nvolves gene r a l economi c
plan ni ng directed at the l:l<:tintene.nce of tibht full e mployraent with
une;r,ployme,1t r ate ( t ha t is , t aking into account l abor force
drop outs ) t hat i s ext::::::l:1e ly lo;,.r. Such an employment rate has
cha rc:cteri zej ~.h is co ..mt ry only ourinc the h e i gh t of World Wa r II .
a r eal
B. A structura l 2. p proac~- -'.!hich cOr:ipens2tes the tende ~1cy for une;r,pl oy ment sncng lo:.' st:illed \.:02·}~ers to r :2:r,3 in at relativ ely high
l evels eve n u1:de r co:1d i tions of ti 2;ot ; ful l emploY7",ent . Such an
approach ·,.;o:Jld r eQuire thst f e d'2:c2.l ~ro 6 r a ms t o b2·inz; nbo:.it. full
e mploy1:-ient be ti ed to s u9.rc:ntee s of 12-bor f orce entry j obs f o r
unskille d men , e.P..d r;u2rn nt e :=& of t n:Ji n i n8 c:-i the j ob to upJ;r8. de
th ose skill s . In t h i s c onte:·~t , tha t is tii;ht , full e,11pl oy:r.c,r'.:.
at all s1(ill l e vels ) a hi gh nin:i.mum ,raz;e woul d a l so be ne cessa ry
and would not };~ve the nega tive effe ct of ha stening th e r e pla ce;:ie::1t
o f me n by rr,o.c11i nes .
C. An inc o~ne rr.3 inten,,:1ce p roG1·2.m- -·,,}1ich fills in the i ncome ga p not
touc h e d by th e tight full e mpl o,y-;r:e :1t pro3 r o.1:is . The i nc o,ne m:'l int enc1. nce progr:':rn ,:oul d b e r ecpired f or families ,:i th dis 2. bled or
rio m3le h ead and w~e re the wife should not ~ork b e ca us e of the
ages or m mj )e r of th e child ren . Such a pro;;rcun could t a ~e tte
fo rm o f f 2r:::i.l y a ll o·.:e nc (~s , a ne 0 cJ 't:fv
.e-S:nc~_,2.x , or c !i ann1.1e .L
r eorc.2.n i za ti on of t:-1e Gove n E1e n::. ' s c l.11T e :1t inc o;:1e r::':.: in'.:.e n2. i1ce
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n ow 5n exi s t ence .
Mr. Kot l e r d e sc ·rib ed t o t h e S1..tbccr!,;;1itte e tt e 2cti viti es 2 2·,d 2cco::,pli s tme ;i.ts o f t.:,e 2:cco p ro j e ct j.n Co j_l1.::,1.,u s , Oh io . He [; 2 ic1. tha t th e s ucce3s
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pri ~:c i-~2..l asent o f c :~e.n~·:,e tc1 ·r·2t;L:..:. .i.C:. our Sl:..,111~s i n to a l ege.l co:r_;-n1..1-nity
o f c,Llture J freec. ,,~ _. 2:1('. ~:!"0spe1,i·:y . 'i';;e nei 6 hborhood mus t becC-r:ie
a le~2 l cc~::nur1i ~ ~: Oi-. s~1.f' :-lelp e!1d sel.f' - 50,._.rer:iing de cisions r..r i th
the suffic j_ e:-it c2 pc, :::i.ty '_;o rele te '.:.o c t o.e:c organjza::.ions ) publi c
a~d private ) for t~e !~sourc es and tecbnicel assistance required to
b uild a bett er city .
<;._
t-'. r . Kotler made the ::'ollc·.-1in.::; reco:rJnen.c1a ti o:is :
1.
'J:he Federe.l
2.
The i ndependent nei &;hbod:ood corpora tions of a c ity should become
d ele[;ate agencies of the existing Corr::nunity Action 0rc;a niza tion .
3.
The neit';'hborrwoc1 corporations wouJ.d use the Federal f t.mds to s ub contr2. ct t o p1'i v21te industry to rebuild the c ity .
4.
An P.lte r no.tive is fo :r t:-1e neiGhbor~1cod corporst ion to beccrr;e a
d elegate a 6 ency o:f the l oc2.l ho . J.s ins a Ltthority .
Goverffir:ent ce.n assist the forrne. t i on of ne i ghbor}1ood
corpo r at i ons by fundin ['; thei r a d;i;in i s trati ve costs and p ro~r ar.'!
ope r at i ons .
1
WI 'I'NESS :
'\-1:Lll i mn A . Doebele ) ,Jr . 1 Profe ssor of City and Reciona l
I~anning ) Assoc i at e Dee n for Developme nt ) The Giac1uate
School o f Desii:;n) Ear··13. rc1 University) Ce r;,bric1L~e) I-1:;.ssach:...lset ts .
Professor Doeo e l e rr:3. de the follo wi nc; rec o,::rc1e nds.tions :
1. ThStt it r equest the S e cre te, ry of the De pa 1·tme nt of H.01..1.s ing and
Urba n De velop~ent to initiate at t he earliest poss ibl e opportun ity }
i n cooperat ion with app ropri a te profe ss i o11a l o rgan i zations and
u nivers it ies ) a c o~r.prehens ive study of rr.a npower resources in the
field of urba n affairs ) r el a tinB t he s ame to t he ne e ds of both
the publi c and pr·i va t e s e ctors J and t he r e quire;;1ent s not only
of ex i stin[; pro 6 r a ms ) but those conte1:1pl a te:d or like ly \-,i thin
t he nex t dec a de .
2. Tha t th e current $500 ) 000 appropri a tion fo r :fello~ships for
gra du':l te study i n cor::m:.m i ty pla nni r:g and nll i e d fi elds ) first
provide d for i n tL e Hou s j_ng Ac t of 19611) o ut not fllnd e d unt il
thi s y ea r ) b e irr.:n'= dj at e l y increa s e d t o at leas t $10 mill.ion
p e r y ea r) a nd e:,:tcnde d to c ove r u r be n s tudies in 1;_s ny fi e ld s
and at ma ny l eve ls of tr2 inine; .
3. Th 2 t sinc e th e ~ os L critica l s h o rta g e of pe rsonn e l is at the
t op pol icy p os i t i ons ) a spec i a l f un d o f $5 mill.i on per year for
5 y e :3. :!."'S be appropi~i a t e c1 for t h e purpose of E.~:'lot j_~~ t h~
este.:)J. j s~r'.:e"'1t , e.-S s e l e c te d u~:i. v ers i t:i e s, of t::ro--_r 2 :-:1s cl es_i r=: ~cd
-~~-c~t{_;-:;_(;~c·~,~:;_;t~::c~:~~-c;:143.215.248.55 16:57, 29 December 2017 (EST):~'.143.215.248.55 16:57, 29 December 2017 (EST)c~~
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an ~:J_ .:., . -~.- of t:~e r:ctv2:~,:.:eG. ~-:.:.:::: ~::·:·:==_---:-, ::-:~·e>_::r2 ~.s of leedi~~ school s of
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Sc }-_c·.:-l -st Prf1!.c etc.:1 7..!~i';/ ers :L:.:: ) t: _:; i;eir,1s.n J?ellows}1ips , e.!1d the
n eu }:c :1~1ec1~,i- Ins t:i. tu~e e.t Hct1~ve, rd . ,.;. _
l~·: Th-?.. t. a1:. equive.l er!~ s;J;·1 Ce cr;~~·-J p:::.~i =?. t~d for the pu.rpose of doi~g
r ese9 :;-·cli and es ta'8l:-..2::-,icl=:; p ilot v2·0,;:ra;n s relat ing to th e tr2. i nin,-:=;
of intabitents of slar a r e ~3 ~o p9~ticip~te effectivel y i n the actu9 l
r e~_u~_ld ing o! t}1et r o~.r~, en . .ti r o!·:..:·;;er.t .
1
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5.
'.i'ha.t 2 su:,1 of n ot l ess than ~;20 r::illion per year be rr,ade available
~----- --to -an -·approprirrte "C~:~3rtn:ei.i:, c1- e. ns.tion~l cc~1nc il, for · di strib1..1-- -tion to univers ities and other r esea rc h organizations for s tud ies to
increase as r a pidly as possible our bas ic 1u1derstanding of the
na ture of u rba!1i zat:i.on and nrban a r eas .
6 . Tha t a separate
sur:i of not l ess than $250 milli on per yea r be este.bli s :-.ed
under the adrninist r2. t.ion of cne or several Fede r a l De pa rtments f or the .
c onstructio~ of l 2r~e - scu l e e xperimenta l u rb~n enviror~:ents, to t est
and ev2.l.ue.te , 1..:0: :1,; th2 ;ne~.h ods of the social and m,tura l sdences,
tbE:__effects o[.:_-u--::::·Lc1e- r2ns_e 0~ poss ibi.lH:i.es \,h ich are nm, technolo;:-:ica lly
feasibl e but cannot be bailt beca use of fi nancial , l c Ga l or other
constraints .
In reply to a c_;ues t,ion by Sen3.tor Ken ne c.y , tr.2 Professo r s2.id that be \, Oltl d
put a priorU:,y on his firs t r eco:r::1;enc12 tion , the second sug[;est ion next ,
a1fd tben m Enoer fi vc 2s third priori t:,
S er..!?,tor Kennedy ,:as very i rnpre::,sec1 ·
with _the p1·o~e.ss or ' s r ecomrrienc1a tions to get nore informa tion e.bout urc a n
enviromaents·, since this j_s one cf the r easons the p roblems }~a.ve not bee :-1
solve d at thi s time .
1 •
1
Ma in questions r a ised by Sena tors Ribicoff and Kennedy ( the only n:embers
present ):
1.
Pru:i.tt-I g oe p~blic housing project j_n St . Louis .
S e na tor Ribj coff aske d Profess or Ea. inwa ter ,1hether there were any
a dvant2,ges at e.11 to living in Pruitt -Igoe , an d the Profess or r epl ied
that the t ena?.1ts were pl eas e d wi "'ch U1e interiors of tr,e ape.rtments ,
but tha t the world tha t be s gro'.m up arot~?.1c1 the project and 'Id thin
i ts bounda ries is \..'h2tt e;ives th e project j_t s ba d name .
Ribicoff \o:as inte r c:-:;ted in whether thi s p r oject sheds e. ny li ght on
public h ous j_ng in 0 e neral. Th e Professor s a id that it s:!10·,:s that
public hous ing s hould b e buHt a t s ca tt ered s it es m i d in s nm l l settl e1,:ents .
Sen':l ·i;o:· ?j_oi~:off b:cc,<Jch e d th'?. possH,i :i. j ty t Yat p1..1bJ. i c }1ousi n c; mo:-i e v
,nj 3 flc -c :2 1ju ~ t o 1:~~ -:.e:: r us e by l e~. L:r: ::: £::l e(_ p0: r so~1 proc:.11·2 h j. s c ·.,·r1
p::i ·.;2. ~.£.:: i:.~-u:::i:1J ·,,_~~ L 2.ri ec~:.liv:1le~1:. 2l -iC'- ~ ~1t. e2.2f". 1~0:1:r: ( 2.":;c.-J. 1:- ~-:)J ) .
�I
6
A propc,seJ. T.,=c.de at a pre,rjous session -,.,as ol so disct:.ssec1 . Tt.2..t
propos0 l #'"·=-c)~_J..d be to h'3 ve ~:-i urb8.1: ho;r1estead similar to t !1e ol d
Homes ·cead .'\ ::: t . Profes sor F:2 in°,:=-!ter also pointed 01..:t tha t Den:~_e rk
u ses c oop2::::::.t i vcs and nct~l)rofi t c ooper2.t i ves to provide lo·,r- incoa,e
h ousir:'.i._; ty givin[!; the o·,.,:1e:c a sutsidy to rent up to 20 pe rc ent
of h is buiJ_din.3 to lmr- i,1co,r::: fa1n.ilies ( rent subs i dies ). Profess or
Ra i rn:at e Y told Ser;::-1tcr :;ibicoff that he c:efini tely would substitute
s ometh j_n; else fer the p:r~sent puoljc tous ing prog re.m a lth oue;h
t he program wor~s b etter j_n so1,:e places t q_2. n in others .
3.
Coope r a ti,:-n b2. t112en EUD and other agencies in Pruitt - I g oe .
.
.. .
~
Profesr,o r Ra i mi2.te r told the Subc orr2·.1ittee that th ere have bee n
many effort s to coordin,,'..te act i vi tics in this project by HUD
and the Labor Depa rtment; but they have neve r rea lly gotten off
the ground . He s a id t h2:r.·e is not a treme,1dous amount of coordination .
In 1961 , e Conce rt ed Proc;rams Se n ' ices ,,as begun; but wa s not very
su<'.:"c ess flLl .
4.
Role of th e Univars ities .
Professor Ra.i!1W"te r ; in r eply to Sen2. tor Ri bicoff; s a i d tha t h e
did not thi nk that a Uni\·ers ity c ould u se th e money that is b eing
spent on Prui t t-Ic:;oe anc1 do a better job tha n the Government is do j_nc;
n c·,r . He s:1.id the.t his g roup 2 re n ot pra ctioners . He thinks th e
r e a l prooJ.cm in public hcus j_ne.; is political . Whethe r the country
i s ,-, ill in;; to do a bet,.:.e r j ob . lie thin:(s tbe role of the u niversity
i s to c12velop p:::oz;:ce~ns f or t he yotmc3 p e·opl e anc1 to try and unck r s t and
the co,~i:11uni ty .
5.
Hi gher inco1r e s - key to
1
tn~
p:co"blem .
In Profes sor Ra inwater ' s opinion ; the r cc,l k ey to url:a n s l ums i s t o
provide p e opl e ;Ii th an adequ3te inc o,.~e . He thin ks this ha s
p riority ove r hous ins a nd everyth i ng else . The solutio:-1 to the
protle:n of ina c:equ,::te i nco:ne would simplify a ll the ot!1er p ro1.Jlc~ns .
�I
TI-i::E i:JE\-7 YORK THlES - Decemb er . 1, 1 966
V1 LKINS DEPL RES /}~r.??.~~r~~
AYUR- Af ]DCUT[[ '· '/
•
Tells S0nators Such Savings Ji
Would Be 'Criminal'
Sprci al to The :-;c ~ Tor~ Times
•I
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WASHINGTON,
1\ov.
30 (, .
· -Roy 'W ilkins asserted befo re I:··,\,, : '. •
a Senate subcommittee toda y (i.,.ij,: L
that it would be "crimin al" fo r \ \'., ~- ' .';
either Congress or the Admin·- ·. ·, . ,. · .I
-, . . -·
is tration to cut back budget ., .
.· -·- ·. , . .::,,
expenditures on social a nd ur-1\
· ban programs.
.
. /'
The executiYe dire ctor of th e . •
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N ~tional Association · for ti1c (
~ft fl~·,,·· '·
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Aa\'ancement of Colored Pcoplc jt
\ t /A ,, :·,
m a de this pomt a day a lter L-·---- ·-·'--' "---~·-· -'~•-'·· Uil lt"rl ?re- ;:;, Intr mat1ot1J.! T cl e,1hnrn." j
President J ohnson a nnounced,
a t a news conferen ce in Texas, H an-,Y Go l<lcn, left , til e wri te r, and R oy W il k ins, cw cutiYe
th a t he was canceling or de- dirqctor o ' the , ;:i t iou :i l AssociaJion for t ie A d\·:rnceferring S5.3-billion worth of m ent of Colo r c<I Peo:ile, t est.if~·in ;;· yesterd a y a t h ea r in~
· Federal prog rams in tl1e cur-!
rent fi sca l yea r. .
I of :t ~c11ate sub(•.nm m it t-ce on pr o ilcm;; of A mer ican citirs.
1 1-
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The Pres ident: in~is ted Urn t J· ··
J·
none of the c.uts would ",-;h0r t-·s la nli a l cw·c for Neg ro un - ' tions .ire so cJ0sirahle th:tt he '
ch3n ge the young, or tl1e·n ccdy ,:ci_11p loymC'nt. "
_
'. wants in on them," he said.
I
_he iH or th e ol~." Sources here, ! "Un fort u n
,~cl .~·, " he, w0nL en .! Ju dge Ed wa rds s tru ck a r e- :
-?nf1rmcd t ~da). _th a t . tl; e C'Ub /the ad m1'.1 1st1_~ t1on o~ . F cdcral jsponsi ve cho rd in the .subco m - 1
\\ ould not I cq u n_e el1m,n a t1on ,111,rnpowc1 dcvdopmcn c .ind cm - mittce when he c::i.lled foi· mo re
o.f key Grea t S0c cty prog ra ms ploymcn t prog rams '_'has often 1and better -trai ned· policcmPn in :
but would del ay th e _ award /bccnn1 a z·k cd by r,u tn gh t r:1,;1a.l 1ur!Jan a reas a nd SU""es tcd es - I
of !Some grant~ and re:q_u1roc <10l11e ,dis\nmin atz~n ~ nd b:i,: ,~r~c:on- ltab lishm ent of a na tii na l police !
belt-t1ght,cm:1 0 a~ . we1l. .
· !rcn cd, . ste1e~ty~cd i~e.i:-; of academy s imila r to the service ,
Mr. V\ ilkms said a fte 1 t he 1wha t Jobs _ N cg1ocs can a nd institut ions at Wes t Point a d /
hearmg th a t although .. he was j"hould ho la. W 1en colored ap - Annapoli s.
n .
dis turbed by the poss10le con- 1phcan ts have been accepted :
.
.
.
/.
sequ ences of some of the cut~- 1they ha ve often_ found l hem -1 T ~,e ~ub<;o'.n.m ittee cha_i rman_,
he did nd't specify thcm-he 1selvcs bemg t ram ccl · for blue- Scn,tt~1. Aoi anam -~: R1bicoff,
ind intend ed his rem a rks la r ge-:collar. service employm<'nt. fre - ,Demoo;t of Connec ci cut, called
lv as a "warn in "' t o . the n w qu0n tl y in dving industri es."
for v ascly imp roYed police p_roCongress," which, he feared , The three other witnesscs 1tcction 1,-:,st. A~gust fo llo,w1ng,
m igh t inte r p ret Mr. J ohnson ·s; were Harr y Golden, author anct 1th!_paneJ 5 fi r_s c round of nea r- :
a ction as a ma nd a t e" to be " in publisher of The .Carnlin rt Is- !m,,,, on ci ty p ioblems.
0
, m al.;:ing fmt hc r slas hes.
rac litc ; D1·. Rohc,·t C"lcs. Har- I _Dr. Col_es, a · ch ild psyc hia- ;
T he Neg ro le.adc r w:i.s one o( 'l va.l'd re.~ea rc h psych iatris t. and 1t1} st , revi ewed his expcne nce ,
fou r wi tne,;,;cs wh o appearc<l br- .Jud ge Gcor;::e Edwards of l hejw1th poor ch1l?rcn and their ,· :
fo re heari no· of the . Senate ' U m ted States Court of Appeals p:'lrents m SouLnern to\~715 and,
Gover n ment O Operations s ub- Ifo r th e Six th Ci1·cui t .
Nor th ern ghettos a nd said t hat 1:
com mittee on urban problems.
Mr. Golderi proposed that the , m many · cases he ha d fou nd 1,
In other points, he :
·
Nf'gro be g iven a 10-year, Sl00- I"strength" ,rnd " vitality '., de - ;
C:: Describ ed the "black power" billion
"indemni ty"-in
the lspite huge obstacles.
m ovemen t of some young Negro form of weliarc, . housing. and
He said, moreover, that he :
a ctiv ists as "t oo da nge rous , too education progr a ms- t o pay fnr had become le. s "eonvincC'd"
amateu r ish , too t ecn-agcrish. his confinement "during the that racial prej udic-e "is Lhe de . t oo much li ke a stud ent p ra nk,' greatest wealth -prod icing pe- cisiYe issue confronting· our
· adding : "It isn 't as bad as i1 r iod in the history of-the world." citiP:'i ."
sou nds, but it's misc hievous..
The Neg ro 's struggle for jus- White;; and Neg roes, he said , ,
. C:Ch arged tha t Federal Job- tice, he said, "ha: no t been to share the same basic fears of t
tra ining programs :'la u in some1a lter a single insti tution. He did un employment, high prices, ill- l
cases h el ped perpetuate racia l'J not wan t to bum the bastille, ness, a:nd the like.
· ,
-=-·discrimina tion.
or get rid of the tax on tea, nor "There is nothing · in the ;
· "Existing Government pro-:did he demand a new parlia- minds of any group of Ameri - i
. gr~ms, " llfr. \Vilkins said in a lrncnt. or a new Constitution ."
cans." he concluded, "thrtt nee-;
~ . , statement, ' 'ha ve fa llen tar! '. ·'V\iha t he ha,; been tellin;; us cessarily compels our present j
· · shor t of prov iui:ng a ny su b- Iis_ that the American institu- !problcms to continue."
I
I
I.
�I
h'
THE WASHINGTON POST - 11- 30-66
By Andrew J . Glass
\Vashi:anon Post Staff Writer
..... .
Sen. Abraham A. Ribicoff capacity as chairman of the
(D-Conn.) yesterday disclosed Executive Reorgan ization subthat he intends to subm it a committee of the Senate Govbroad legislative package t o ernment Operations 'Comthe new Congr ess dealing with mittee.
what he called "the problems Sen. Robe1-t F . Kennedy (D·o f rebuilding urban America." N.Y.) is expected t o attend the
" We're off on our own," t he session .
Senator said in an interview. The Ribicoff panel held
He thus made it clear that he three weeks of hearings last
plans to champion the cause summer on "the crisis· in the
of t he cities on Capiitol Hill cities." They produced several
nex;t year whether or not he abrasive encounters between
receives backing fro m the Kennedy and witnesses, who
Johns·on Administration.
wer e drawn mainly from men
"One of t he great ·prob- holding elective or appointive
IT ems," Ribicoff went on, "is posts.
the tendency of the Execu tive The current hearing list, rebranch to r un t he whole leased for · publication today,
leans heavily toward non-govshow."
While Ribicoff, a former ernmental witnesses. They
Cabinet member' in the Ken- come from such diverse fields
nedy Administration, did n ot as private finance .and psysay \SO, it was nevertheless un- chiatry.
derstood that the 'W hite House Tuesday's w·1nesses will be
has offered him virtually no David Rockefe er, president
support for his urban legisla- of New York's Chase Mantive drive.
hatt:an Bank, and Richard
3 Weeks of Hearings
Scammon, vice president of
The Ribicoff proposals will the Governmental Affairs Inbe shaped, in large measur e, &titute and a former director
through ,a series of public of the Census Bureau.
hearings encompassing all The hearings will conclude
phases of urban life that will Dec. 15 with testimony from
begin on Tuesday and con- the Rev. Dr. M-artin LutJ1er
tinue for _three weeks.
Kin.g Jr., president of the
Nearly 50 witnesses will ap- Southern Christian Leaderpear before Ribicoff in the ship Conference. Ribicoff said
Senate Caucus room-and on this will mark the first tim~
television. The hearings prom- that Dr. King has ever testiise to serve as the sole legis- fied before a congressional
lative -a ctivity of any conse- group.
quence ito · occur 'before the Virtually the entire roster
new Congress convenes next of the Nation's Negro leaders
January.
also will appear before the
Nearly 50 witnesses wm ap- panel. They include Roy Wilpear before Ribicoff in his kins, executive director of the
_ _ __ __ __ _ __ __ National Association for the
· Advancement of Colored Peoples; A. Philip Randolph, president of the · Brotherhood of
Sleeping Car Porters, AF LCIO; Floyd McKissick, national director of the Congress of
Racial Equality, and Whitney
M. Young Jr., executive director of the Urban League.
Other leading witnesses at
the hearings include Walter
Reuther, president of the
United Auto Workers, "AFLCIO, -and McGeorge Bundy,
president of the Ford Foundation ,and a former Special Assistant to President Johnson.
= ==-- - - - - ·- --·-- - -
�THE I\lEW YORK TI.MES - November 27, l 966
oi rntcrc~t the White House ap parcr,tly put it aside. R epresentative Henry S. Reuss, Democrat of Wisconsin, has also
, suggested it ln the House.
Mr. Goodell said h!s pl an dit.
fered from Mr. Heller's in makRep . Good ell Asks All otting ing a specific allotment o! tax
of 3 % of Income Tax
receipts to local communities.
The plan calls for. distributing
·
50 ner· cent of the f unds' for
WASI~N~TON, Nov. . 26 stat~ purposes, with 45 per cent
. (AP) - -- House Republican to be r edistributed by the states
leader has a!ready draft;d _ a to iocal governments, a..-1.d lS per
plan for sharmg Federal r.axes cent t o strengthen the executive
with st~te an_d loca,l govern- and management fWJ.ctions of
ments tnat will be a come stone of Republican policy in st ates.
•
_
,
the next Congress.
The stace _and 10cal . gove:n·
The plan calls for turning mcnts would nave full discretion
back 3 p er cent of Federal in- ?Ver how the money was used,
come tax receipts to states and out each: state would ?e required
localities to use as t hey see fit. to submit its pl n for allocatmg
The amount would rise gradu- ~he ~10_ney and :make an annual
r eport on how it was spent.
ally to 5 p er cent.
Offered by Representative
Treasury Post Planned
Charles E . Goode:!, Repub lican The office or administrator of
?! upstate New York, the plan general aid would .be established
1s the fi rst concr~tc proposal by in the T reasury Deparbnent to
the House Republican leadership assume Federal -esponsibilities
since the Republican election u..~der the plan. •
trmmphs of Nov. 8.
·
,
"This proposal seeks to pro- . M1:, G_oo!ell s plan calls :for ,
vlde for the great public needs d1str1but!n 0 90 per cent _of the ,
of the 1960's a nd l970'.'l by Federal mcome tax dlstr1but1on J
equipping state and local gov- to the state;; on a b':s1s of popernments to meet these needs " ulat1on. The rema mmg ;o per 1
vrr. Goodell aid. "It 1s an a'i- cent would be used to raise the .
t ernat ive to the philosophy of per ~ap1ta ,_allotment in the 17 :
the Great Society " he added . poor-est staces.
•
'
.
Using estimated lncome tax
.1'.ot Replacing Anything
payments fo r 1967, Mr. Goodell
Mr. Goodell, chairman of the said that Sl.8-billion would be
Republican Planning and Re- available for distribution. The
search Committee, said in a average basic allocation would
statement
that
tax-sharing be S8.50 per person, with the
would provide needed general equalizing funds raising the
aid funds without reducing poorer states by as much as S6.
state and local governments to Although the. Federal Govern-'
administrative subdivisions of ment would have no control over!
Washington.
how the states and localities
It is not being offered, at u~ed the money, Mr. Goodell
least originally, as a substitute said, such use would have to
for any existing programs, he comply with Federal law, includsaid, although in time ,i t m ay ing the Civil Rights Act ban on ,
permit s ome of them to be cut using money for programs in ;
back.
which there is. racial discrim- :
A tax-sharing plan was pro- ination.
·
posed in 1964 by Walter W. He!- Mr. Goodell v,,ould also require :
!er, then chairman of the a review and possible revision :
President's CoWJ.cil of Economic of the program by Congress
Advisers, but after a brief flurry after four years.
T XSHA I G Lil1
F~ERE G.
�IvJI .4l F8_Il lfi ltfJW IE
fvII !E fiJ. 1 §
o
0
0
is here 1o stay and.' make it a deeent place to
live," Foli:y protested.
i.ubtu·bs '?
The meeting, as often happens in g1.1v-e1-n.
ment, didn't settle anything. It is, however, a
dramatic illustration of tile painful but secret
process now going on inside the White House
as the adm.ini'>i:rat\on prepares for L°ti7.
f:f
.: · .' ' %~iii'-\
.· _/:.,-;- '·-?r·i
SO:ll,E OF THE PARTfOTT'J\:\'TS in that hig,h-
Z
powc•rwl St':S.'i'ion we-re chug--rin<·d t;hat Shul tze
failf'r:I to inclu<k a proposal tackl ing what they
wn sider the h igi,'C'St urban pro'xl<'m of u.il - tm-
em 1,l9yrnent. .Secretary of Lnho.r Willard Wirtz
obsNvN.i testily that t:he prol,l<-m ot t11c ci<t:ics is
c cntl'rcd upon tlw pl igJll o[ tu1e pove ry-{;trickcn
Negro. Ghettos . He pointed oul that the unemp loyment r ate among Negroes is twice that of
whiles, mid stressed he belirves providing jobs
oo m the ghettos is tJ1e key t:o tlw.Jping the cities .
~
i;.;i
z
\
Silould the Ul'h'an N<'g-ro gfhetl:os be r"'bu1Jt or
ti!iould ~hair re::;1dents ibc ::;catlcred t:o the white
R1Ji?"X:'.t f..,~&l 'l1.11c smgglc among high adf?/'-'t/0 .-··: _., :\:: mini::;u·atlon ollidals for an ani' ·
·,·.-J\ '.d swe r to that question has been
i. . : ·.,,,~ / (J. inlcn!;C since a heated a.rgu;'1,-: )l~'-,:,i
mcnt eriuptcd in the White
[ ·' · ...,·,'·':, f ;~ ·; -~ HoLtSe office o£ Joe Cali.fan
many weeks ago.
\ ~ 'i · ' ·-:,-' ·: Bureau of the Buc'.get Dircc1Dr Ch,u·ks Shi1llze set o.fi the
~ - ·- ---...J tense exchange w 1w11 he b{'gan
MEANS
cliscw;s.ing tJ1e urban crisis be-fore nr-;u•Jy a dozen cabinet anrl ::;uh-cabinet
rnrmlx:rs a~semhled bc1H'a th Califano's stark
hl,wk ,ind in-ey a:lr.;trncl pain1'in 6'S. Sh1tltze prescntro a hst of J5 sugg<'!il ions for improving
condituon in the ci ties .
j
llro
111en-Attorney General Nichol-as Katz,:nb'ac:h
and thcn-Assbtant Secret,ary o! Commeroe Eugene Foley (Ka tze nbach is now in tJie State
i:.:l Deparlment, F oley has gone into pl'ivate life)
~ echoed Sec:retary Wirtz. T hey added t:heil· awn
pleas for new progr anis to attr a ct industry and
PRESIDE.1\'T JOill\SON has long btoen roncerned about tl1e problems of the urban centers,
where 70 percent of the population lives, and
h as rejX'atcdly · indicated that city prob~ems ,1i ll
make up a large share of his 1967 legis lative
program. In a d<lition , his inte rc::;t in the citi('S
nm, t crn·tainly krve been reinfo..rc..<>d by llie
warning of this montJ1's eJC'Ction, in which tlie
. GOP di:monstrated impressive gains in_ t11e nol··
m al ly Democratic hig city vore. •
(Although tJ1at same e.lection sePmed to ind:
c~:te a n;lfionul nbn0c---phe•re of entrench ,'1}ei;t
which . for,'shadows difficulty for the admin istration i n Congress i f it:; progrnms for tile cit ies
are deemed t:oo expensive or too visionary).
Witllout much fanf:lre and largcly ,,ithout
p ubhc notliec t11e White House has se t about in
scv0ral ways to work on tJic problems o£ tne
ci ties. Passage la~·t ::;Pason of the Demons trabon
Ci til's Bill, was of coiu-:;e, a small but importa nt
b eginning. A special l~ k foi;ce has been assigned to produce new ideas for tlie cities which
oould be included m adnunistratioo measures.
·
AND THAT CABINET-LEVEL group, which
meets weekly m Califano's office, nets e..s a
watchdog over tlle presently exisitng programs
m an effort ro see tJ1ey are fully ut:i.ful:xl.
Meanwhile, t"ie Justice Depar!:zl".ent is pbnnjng sho1tly to mnduct a landlord-tenant co!"Jr:rOn e official present, however, int ~rjected th a t
c.1ce in the capi tal. The conference will bring
he opposc-<l such eflo11·s to rebuild t!he slums
tugether state and local officials and lawya:s
until conditions WPre improved for the poor, unfrom _across fue country to discus s procedurl'6
ed ucatcrJ Negres of lhe rural soutli. I-Le s aii<l he · which might be adopt ed to protect slum tenants.
prl'fc1TPrl trying to resettle slum jlJcgroes. " H
A major slum probl em is tile failm'e of landyou make tJ1e ui·ban g-h0llo livabl e all you'll
lords to make essentia l repairs upon their
haw i~ the Mississippi Nrgl'O moving North and
dwellings. Tenants, w110 often cannot r ead noI
reducing t.he arc-a to a sltun again ," he said.
write, seldom know the identity of their landlord
"You've got to face the fact that ·he gjhetlx>
an<' hav.c no wey of pi-ess• 1·ing 1'.im Wo action.
job-pro<lucing projects into
•• I
the
ghe ttos .
J(.{:-
�TI-E rIEW YORK TI MES- 11- 30 - 66
CITIES 1i\ YGET
,: ··-u .0,
Q _ n11r1r1 11TG
ID!;
1.1 ,~L1'1
1
.;
R~~ds
l/'1 0/ &--
I
.~hief _Hints Pro~os~l-i'1
_e. to Di vert Highway Funds . .
n;; :\UHJOH- E
HU:\'TEit.
,'. · Sp rc li\l lo Thr New York Times
·•.· WASHINGTON, Nov. · 29~ .
The.· Administration is expected ;
t o ,t.sk Congi·css next year lo j
dea r· the way . for. the ,us e 1 'of
highway flmcts :· to help· : cities
fin ance off-st reet parh:ing..
·• · .
· Strongly backed by Fedci·a l
h·ighway offi<o:i~J~. the, wop_o ·all);
js known to · 1Jc unclc1' sc nous ·
1consideration a t higi1 level:;. · · ·.
l A strong indi cation that the '
IAdm inistration has virtually de -·
cidcd to push · for such . an .
amendment to the Federal High~
,way ·Act, in th<; next Congress
came to day in a ·pccch by f.:c,-;
M. Whitton , the Federal ' Higf1-·
way Administrato1·.
·.
I n a speech to the Americ,tn
A sociation of · State Highway
Officials in Wichita, Kan .; ai1d·
rele ased by his . office here, Mr,
Whitton said : .
. .
I "It is my belief that we will
have to do something to provide
fin a ncial assistance to cities for
off-street parking.'.'
Mr. Whitton did not set a
ta rget date. Nor did he propose i
'any specific· amount of money. :
However, sources close -to , the :
Administration say that- .the ,
p1;oposal i almost C<:?rtain to be :
presented to the Congress con- ,
venini in ' J an uary.
··
·Under the present Federal
hi gh \\'a.~· law. funds cannot be
us<'d for parking faci!lties . . The
bulk of the 1:10ncy is used to
help s tates acq uire rights -ofwa\· a nd onstruct highways. ,
i 1any mcmbe1·s of Congress .
would a lmost certainly oppose
diversion of funds from road building into construction of
parking faci li ties.
This opposition would likely
be particula rl y strong at this
time. for President Johnson last
week ordered a sharp cutback
in the Federal highway program
in an effort to quell inflationary
pressu re in the economy.
The Federa l Government ha d
originally planned to commit
$4-billion to $4.4-billion in highway funds in the present fiscal
year end ing next June 30. This,
has been cut back to $3.3-billion.
I
......,.
This will slow roa dbuilding in [
every state. The grea test im - :
pact will be on the inlcrstat c l
supcrhi;hway system, a H,~00- 1
mile system that is now s llgntly ·j 1
more than half completed.
1
Under the cutback, New York
State's Federal -aid lirnitation
bill will be Sl 71.115,000, of
which just $183.000 has been
placed under contract since last
·June 30. New York's share last
fi scal year was ~210,587,661.
In pushing for authority to
divert funds into off - street
'parking, Federal highway officials argue that it would less
costly in most cases to erect
park ing facilities than to construct new streets.
By removing existing street
parking, they point out, one or
two additional traffic lanes can
be opened to vehicles.
Federal highway_officials arc
also see ,ing other solutions to
·urban traffic problems. One proposal is for what they call
"street stretching."
· In his speech today, ::11r. Whitj ton described "stree t tretch,ino-" as converting existing
1 sidewalks
into vehicle traffic
lanes. Pedestrian walks would
be provided in arcades buiit into
the first floor of buildings.
' 'This obviously is not a chea p
solution to increas ing the traffic capacity a nd safety of
streets," Mr. Whitton said . "But
it certainly is less expensive and
disruptive than removing entire
buildings for new street or free• 1
way constructions.' '
'
�,
THE i'J"EW YOKC TIMES - 11- 30- 66
61/ '.J.:,-f ,,-·
,,__ __
0
_
_
Sen te Panel Endorses Bid
for · eavy Inv stnient
By IWBERT B. SEi.\fPLE Jr.
SpcCJ,11 ·to The 1,:cw Yor · Times
...... .
WASHINGTON,
Nov:
29
- ~po~::,ls aime~t._;,ttr~1;;
h v,;·e su ms oi_J,,r(,va,t<> r.llJ2.! tal
into sl um rehabilitation received
i,f?ong endorsc,nc~~Ltoday as the .
Sc:nate Govc::·nmen t Operations
s ubcom mittee began · a second
r ound ... qfl, ca1:in;;s on what has
be:en _, ;1llcd, . U,e,. ' c_i:isi,( ~n _t]1e .
ci ties..': .·. . , ; .':·· :· ··....i :·;:., · , ._.;~ ·: ~:-11·
Sena'tor\Jacr;b K _J a vit~. 'N°cwf.
Yorl, Republican , ~ subcommi t- ,
tee member, said he was '.'encouraged by 1:ecent reports that
the J ohnson Administration had
such a plan under study.·
Senator Abrnham A. Ribicoff,
t he subcommittee chairman, decla red tha t the task cf providing
decent housing , in slums was
"not going · to be solved ·by
Government-alone.", ·
He indicated that ··he would
listen sympathetically to any
proposal involving- a joint pu blic-private assault , on g hetto
h ousi,ng. . · ·· · '
·.. ·
A Tc1itati ·c Proposal
Th~ Adn1inis t r ation's Lci1 tativc '
proposa l, developed over t he/
l;i.s t six months and re fined by
til e Dcparlmenf of H ow-:ing and
Urban Developmen t, calls fo r ,
creation of a na ti ona l, nonprof-1
it, semi-public _~.!1-Df'vel_Qp.Jlli;nt Corpornt1ll11 lha t, its sponsor~ hope, would attract heavy I
private irwestmcnt · in t o ~!um
r ehabilitation by p roviding .
variet y of F ederal incentives
and guarantees.
.
'I11c substance of the plan was 1
disclosed in The New York
Times on Sunday.
··
' E ven thoug h ., no member of
the s ubcommittee ·would comm it himself to · it specific approach, today's hearings indicated ·a lively interes t in the /
pla n on the par t of ·!Irr . Ribicoff ,
and Mr. J a vits, a s well as t he 1
committee·s ·lcad witnes., , Da, ·id !
R ockefeller, New York fi na ncier
Mr. Rockefeller, p resident of
t he Chase ?v!anhattan Bank, decla red tha t . " urilan r ehbiilita tion is primarily a t ask for p r i~
vate enterpris e." But,- in rcspon
to sustained r1ucstionin g ·from
1fr. J a vits, he conceded tha t
·business would be r eluctant to
make heavy_ capita l· .otttlays j n
slum a reas ··beca us e the · ris k'
was grca.t a nd the prof/t re-,
turns poor , ._. ,_
al
.r.olc a s Cont_ractor
,
However , the Xew Yllr!, '
ba nker also decla r ed t h:i.~ busi- l
n r..ss would nrobably be abl e to
provide substa n t ia l clp as a
··contrncto,·:' acting fo · the
Govern men t-which is one of
t he roles f or bus inc.s s envisioned
the propos;1,l · P. OW under study
in the Adminis tration .
U nder th e pla n, the ,Ur;;an
Dcvclopmcn_t Corpora.Lion would /•
h elp acquire rundown hou~in;;u sing money from pr l\·atc sou r- I
c:cs such as ban ,s a nd fnunda-1
lions as .well a:-; Governm ent
fun ds-and Lhen invite i:1dustr y
to rcha.bi ifate it · chea ply and
efficiently .
·· ·
·
In this wa y, the r cpc,rt describing the p·lan wasy, the cor poration
would
"fuse
the
presently fra;;mcntcd purchasing p·ower" of the Government
with t e nrnnagcrial a nd technol o~ical capacity of "Amen. ca n industrial or;;anization."
The progra11's sponsors have
said tha t n either n ew appropriat ions ·nor new le;:;islation oould
be imincdiately requir ed.
T he plan, in its fin ai form ,
r ecommends as a first step the
purchase and rehabilita ti o~ - of
· 30 000 units in se,·era l c1L1cs,
requii·ing about _ HOO -million.
E arlier versions of t he pla_n
predicted that · ih 10_ · years . it·
could providc..,...assummg 1mt1al
success-5 mil lioa· ·cha bilitat cd
or newly b..:il t. s um un its at ,an
aggregate . cost of S?0-billion.
Appear s ' Pessimistic
?11:r: R ibicoff urged :).1:r. Rocke feller·, who .at t imes app ear ed
pessii11istic a bout a,i"akeningbusiness enthusiasm ·for la rgescale. investment in slum s on
anything other than a contractual b?.sis, to examine not the
obsta'c lcs to redevelopment but
the "hopes and the possibilit ies.'_'
·
.
H e ., u;;;:;e.:;tccl U1a t busmes s,
especially ·t he construct1on · 111dus try , woul d find in sl um re h abil itat ion J n enormous mar ket for suppiies 1·a n,:;in;:: from
floorin "' m aterial to dis posal
uni ts.
Mr. Rcickcfcllcr a lso h ad kind
words fo r loca l · r r.development
pla ns such as tha t envisioned
by S enator Robert F. Kennedy
in t he Bed,or cl-Stuyvesant a rea
of Brooklyn. The Kennedy plan
ca lls 'for t he establishment of a
n onprofit corporat ion t o engineer the· r ehabilita tion of Bedfo rd-S tuyvesant · housing.
Th. New York banker described th e approach as "mo t
hopeful."
He a lso exprc-ssed considerable interc,-t in ll[r . J avits',, sugg estion that the Go".ernmcnt
h elp industry fon11 a technological consortium similar to the
supel'sonic transport pro::ram .
The New York R epublican
pointed out that t he Governm ent wa.<; currently pou ring
lar;:;e sums of money into the
aircraft industry in Lile quest
for a successful super~onic line.
He ,q1;::r:estecl. Rlld ~rr. Roc-kefeller ag1:;,ed. that some k ind of
" broad - scRle
m a nagement
group mi~ht be established .
with Go\'emm01,t. help a nd - put..
to work d,~,·bing a nswers to iltE;
- . , - ··-. - ~ ....-.....- ., ,. · .:, .
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�Poirt lo r .i-D /U ll to Ponder
The co nt roversy bct\reen _,M,ont m nic ry C'.J.ll.Ult.Y
an the Department o, Housing and Ur ba n Developme 1t h olcl s a much broader interest than
the rezonin g of three squ:-ire miles in the Wash ingi on suburbs. We clo not, of course, wish to minimize the importa nce of nullifying the butchery of
planning by the old Montgomery County Council
in its lame-cluck r ampage . But this is an in teresting
test case which is certain to have an important
b ea ring on the r elations between HUD and local
governments in all parts of the country.
HUD must necessarily invest its matching funds
for the purch ase of park land and the protection
of open space in accord with the standards that
Congress and the agency have prescrib ed. It cannot be, exp 1-cted t o assist a county which makes a
farce of planning and ~ou,i_ug protection. At the
same time, however, HUD must avoid usurpation
of the powers of local government and the use
of pr essur e in deciding local issues.
In the case at hand, we think HUD went over
the line in applying pressure at a moment when
the unfortunate situation in Rockville seemed to
be righting itself. Unquestionably its intentions
\\·ere good . But unless its pressure can be relaxed,
the result may be to defeat its own purpose. Senator Brewster and numerous local officials have
pointed out to HUD that the net effect of .its pressure on the new County Council to cancel its
predecessor's last-minute r ezoning decisions may
be to throw the entire controversy into court on
the issue of intimi dation .
A significant precedent for su9h suits is r eadily
at hand. The grant of a n exception to the Soviet
Union to per mit the construction of an embassychancery in Chevy Chase wa s upset in court some
months ago because the State Department had ,
brought pressure on t he District's Board of Zoning
Adjustment. HUD officials should realize that any
specific zoning change which they impose upon
un willin g local zoning authorities is highly vulnerable to legal attack.
HUD needs to have assu ra nce that the reckless
zone-busting policies of the old Council in Montgomery County have been abandoned . It needs assurance that proper safeguards will be ad hered
to in areas for which Federal aid is sought. But
these assurances appear to have been given not
only by statements from the new Council but also
by its vigorous action to wipe out the effects of
the r ezoning spree, so far as that is possible. The
grand jury investigation into possible irregularities
and abuses affor ds~ further evidence of the new
atmosphere in Rockville.
In view of these vigorous efforts to undo the
wrongs of the past and to adopt sound new p oli, cies, we think HUD should withdraw its freeze of
Federal funds for the Maryland suburbs before
the Council decides the rezoning cases' which it
has reopened . HUD could again suspend the
matching fLi'nds if the final policy which emerges
should prove to be unsatisfactory. But if it insists
on turning the thumb-screw whi1e the Council is
sitting on these controversial cases it may defeat
its own purpose and greatly embarrass the cause
of proper development of the National Capital
suburbs.
The Washi ngton Post - Nov . :2-S, 1966
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Dangling- on h ook of a large er ne,,pre-assembled kitchen
and bath room unit is hoisted ornr East Fifth Street on
Lower East Side in "instant rehabilita ion" demonstration.
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]\foments l ter, unit is lowered towa cl roof of the building
for whic 1 it is destined , an unoccupied old-law tenement
in which a hole has been made from the roof down.
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Experiment Testing '
New Rehabilitation
---· · Me t hods Here
By STEVEN V. ROBERTS
A gian t cra ne swung a prcasscmo!cd kitchen and bathr oom unit thtough a hole in
the roof of a five -story oldJaw tenement on the Lower
East Side yesterday. Within an
hour workmen had bolted it
into place and would have had
it r eady for use except for the
plumbers' strike.
The job was part of a progr ess report on "instant rehabilitation" - a n experiment t hat
aims at cutting the time for
r enovation of a slum building
to 48 hours.
vVhrn the experiment began
la~t A;, · : the plc.n was to tr.st
new mac<'rials and r ehabilitation techniq ues on t wo unoccupied tr·ncments at 633 and 635
E ast F ifth Street. Conrad E ngineer.,;, t'.1e California company
that is conducting the experiment said It would be ready
for the 48-hour trial on No. 637
in midsummer.
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The four-month stri ,e of con-,
strnction p umbers and other
del:.w s have set back the f inal
triai' until Feb111ary or March,
accordi ng to Edward Rice, president of Conracl Engineers.
When the glistening bathrooms and ki chens were in·stallcd yesterday at No. 635,
structural defects in the 70ye;i.r-old tenement caused the
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unit to rest. at le:i.st an inch whether <,>ld_-Ta_w !enements aret·~~t~estions" the wisabove the ex1stmg floo r.
worth r enamllutmg. Peter L . Q..QI\:) 01 rt:, uvaun:; t.ne tenedirector for 1:1J6iR oii:!.h~r"Easc Side,
This seemed to symbolize the Abeles, housin
c~~us . an: ong- hou.,:Sin_g __ex- ~ -f.i0L!,_tor.J:m= .t.~!]nJ)- Th_ey_ cover l:i5 per ce t o!their
per~s on'""'insfan r c1ITtb!ll_ta- !2JlV~~'~ 1~iz2g-E:~J'~~ the bmldmg lots and front. on
tion"-that i t is a prom:smg currcnc expern ~ b!.lk.,'j_aid he streets only 60 feet wide.
experiment that has produced =
-================,--- - - - -=--- -"""'"'
some, but by no means all , of
the answers to the problem
of renovating slum housing.
]\[orcovcr, t:1e experts beJicYc, it should be only the berrinnin"' of an intensified refearchO program to !ind better
technical and financial tools to
produce decent housing in the
ountry's slum areas.
\rr. Rice noted that many
const. uction materials had been
·tested in the fi rst building. The
-tenement now cont2.ins vinyl
.f loors that require n o r efinish·n"' for 10 years, ceramic bath!i·o~m tiles that stick together
i\vithout liquid cement and wallb oard that is so tough that
workmen had trouble cutting
holes in it for electric wiring.
E:.;:pandablc windows t at
adapt to the irregular shapes
of the old window frames have
·been installed. Garbage chutes
lead into a Swedish device that
compresses the refuse, disinfects it, and even sprays it
with perfume.
Two one-bedroom and one
three-oedroom apartment will
be buit on each floor of the
tenement buildings. The average
development cost will be about
S13,000 an apartment, Mr. Rice
estimated, as opposed to about
$23,000 for new construction.
"There is uch a tremendous
need for better housing in New
York that it is worth r ehabilitating these tenements," he said.
He asserted that the cost of
demolishing the city's 43,000
old-law tenements - those built
before 1901, with minimal standards for ventilation and sanitary facilities - would be pro-,
hibitive.
Housing experts a re debating
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�Noveml> r 23,
TO : All Member of the T
s
FROM:
the draft sub-cammitt
Attached
Dece
Force
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port.
1966
�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.
'- -
�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<·
*
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-- -
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.
�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.
�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
�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
�- · - - - -- - ·- 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.
�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 •••...
�,,
·----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
�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
�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
�-·· ·- --- - . . . . _., .· -· .... ·-· - L
11
.
- ..
_e::~2..·c11:., - ;
chc:::.~gc
it
rnc.ny
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socie:ty.
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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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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.
=ri_ -:·.2ny ci l.:i~s, of co:.: :::- s2, ·:.-:-2 c~-: .::. ~2.:: 2::.:-:- i :--:; to a p::.--01.) l c::-:1 \·~~-..ic~-:
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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
____
r"\ ~--
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
c--...- ...~1.:.
r. t. st :
~. 3 ~
~ 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
.J 11,
the fre_quent, now almost steady state, urban crisis of :11;· J :~verty
.
an d segregation.
ll'l!'i
1,111
1"'
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.
I
•--
'
·t1;.
,11
r! 1,
11
·1,I
" I
I
I
�·1
2
- 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
,1
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
·I'
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
�,'I
'Ilji'
I
I
I
I
lj :, ,,, I
li
'jl
~
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
11'
1
1,1
.I
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.
�4
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
,.
1· 11
•.
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) ·
iI',
Ii
Ji
I.,
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.
~-
1 I
'
...
,
., '
�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 .
�L
2
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.
~)
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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3
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.
�s
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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7
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
�,, .
9
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, Complete Folder
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
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685b8d7f5075518098f8d849adfa66af
Scripto
Transcription
A written representation of a document.
"·
The Department of Housing and Urban Development
and
The Office of Economic Opportunity
CONFER ENCE ON HOUSING FOR, THE POOR
Ma y 23-24, 1966
Wa s hington Hil ton Hotel
Washington, D.C.
�.,
ti
Agenda for
CONFLmENCE ON HOUSING FOR TIii~ POUR
Department of Housing and Urban Development
and
Office of Economic Opportunity
May 23-24, 1966
Washington, D. C.
Purpose:
The purpose of this Conference is to evaluate the feasibility of
providing several million additional standard housing units within the next five
years, at prices the poor can afford. We are seeking from this Conference (1) a
summary of what we do and do not know about how the poor are housed, in physical,
economic and social terms; and (2) identification of alternative programs or
combinations of programs and implementation strategies, that might make decent
housing available for the several million poor households that would otherwise
occupy substandard or overcrowded units by 1970.
Program
Monday, May 23, 1966
9:00 a.m.
Opening Remarks
Sargent Shriver, Director
Office of Economic Opportunity
Robert C. Wood, Under Secretary
Dept. Housing & Urban Develop.
9:15 a.m.
Conference Procedures
Dr. Morton J. Schussheim
Director, Office of Program Polky
Dept. Housing & Urban Develop.
Mr. Alvin L. Schorr,
Deputy Chief, Research & Plans
Office of Economic Opportunity
9 :,30 a .m.
Statement of Problems and
Its Dimensions
Professor Charles Abrams
Columbia University
(The number of units and poor people in need of better housing;
the extent to which rehabilitation and/or clearance are
required; the costs involved; present locations of substandard
units; composition of occupants by race, age, size and family
composition; the national goal.)
11 :00 a .m.
Social Issues
Pr o fessor Nathan Glazer
University of California
(The questions of deghettoizing the poor and particularly
the nonwhite poor; the supplemental educational, counseling
and back - up services required; the problems of a means test
and establishing priority criteria; the attitudes of poor
and non - poor to this housing; the difficulties and oppor - t un ities of relocation . Should standards be reduced , e . g .
no air conditioning ; room sharing; smaller room size ; etc • . . )
1:00 p . m.
WNCH
�2
Monday, May 23, 1966 (Cont'd)
Technological and Land Use Issues
2:30 - 5:00
Richard J. Canavan
National Association
of Homebuilders
(The ~ype of housing required and its location; the
availability of land; architectural and city planning
concerns, the technological problems and opportunities
of a large-scale building and rebu i lding program; the
abilities of existing or proposed institutions to
implement the program; prospects f or cost reducti on.)
Tuesday, May 24, 1966
9:30 a.m.
Economic Issues
Pro fessor Chester Rapkin
Uni versity o f Pennsylvania
\
(Alt e rn a tive mean s of fi nancing the pr ogr am; the
effect on the economy o f a multi-b i llion do llar
program; the effect on the total housing industry
and constr uction costs; a c ceptable standards of
space and quality; the effect on the values and
cond i t ion of e xisting housi n g a nd n ei ghborhoods;
e ff ici encies that mi ght r esult from a r eeva lu a ti on
of the e conomics of the hous ing i ndust r y.)
12 : 00
2: 00 - 4: 00
LUNCH
Program Issu es
Dr. Lou i s Winnick
Pub li c Affairs Program
The Ford Foundation
(The t ypes of programs to me et the objec t ive ;
possi b le expan sion or red ire ct ion of exi s t ing
programs and t he inv ention of n ew kind s of
programs; possible number of units to be dev eloped;
~he phasing and possible mix of programs over a
several-year period.)
�List of Invited Particip~nts
Conference on Housing for the Poor
Mr. Charles Abrams
Professor of City Planning
Columbia University
Mr. Nathaniel Keith
Consultant
,
Mr~. Ruth Atkins
Community Representatives
Advisory Council
Office of Economic Opportunity
Mr. Saul
Director
National
Mutual
Mr. Richard J ; Canavan
Staff Vice President
Builder Services Division
National Association of Homebuilders
Honorable Sherman Maisel
Board of Governors of the
Federal Reserve System
Dr. Robert Dentler
Center f or Urban Education
Honorable Arthur Okun, Member
Council of Economic Advisers
, Mr. John Eberhardt
National Bureau of Standards
Professor Chester Rapkin
Institute for Environmental Studies
University of Pennsylvania
Professor Bernard Frieden
Departmen t of City and Regional Planning
Massachusetts Institute of Technology
Mr. Nathaniel H. Rogg
Executive Vice President
National Association of Homebuilders
, Mr. Robert Gladstone, President
Robert Gladstone and Associates
'
Dr . William G. Grigsby
Institute for Environmental Studies
University of Pennsylvania
Klaman
of Research
Association of
Savings Banks
Mr. Arthur Levin
Potomac Institute
Mr. Albert M. Cole
President, Reynolds Metals
Development Corporation
, Professor Nathan Glazer
University of California
Dean Burnham Kelly
College of Architecture
Cornell University
'
Dr. John R. Seeley
Chairman, Department of Sociology
Brandeis University
Mr. Miles Stanley
National Advisory Council
Office of Economic Opportunity
Dr . Louis Winnick
Public Affairs Program
The Ford Foundation
�~
Housing Poor Families
The Problem.
A program to house all the nation's poor in decent
housing at rents they can afford contains two distinguishable elements:
i)
how to improve the housing conditions of those presently living in sub-
•
standard quarters; and 2) how to lessen the.financial burden of those who
live in standard quarters at the price of devoting an excessive burden of
· their income for housing.
OEO has e.stimated that upwards of 4 mi·llion poor
families and poor unrelated individuals in 1964 lived in housing that was
dilapidated, lacked ~lumbing facilities, or was overcrowded •.!:/
The number
· who overpay for standard housing is harder to estimate but is large.
For
example, in 1960 rent-income ratios were computed for 5.7 million families
with incomes under $3,000 .
4.4 million of them were paying 25 percent of
their income or more for rent.
An ad ditional .5 million were paying be-
tween 20 and 25 percent of their incomes.
In theory, housing needs of poor people should decline because of
anticipated declines in the proportion of families who are poor and because
o·f continued upgrading of the total housing stock.
Between 1950 and 1960,
however, poor families received only 2.5 million standard units out of a
~t overall increase of 19 million .
That is, families representing 30 per-
cent of the total in 1950 and 20 percent in 1960 showed 13 percent of the
1/
The incidence of housing characteristics in 1960 was applied to 1964 data
about the poor population, producing a total of 4.1 million in such units in
1964. If one proceeds alternatively from the housing stock itself .and the
rate at which improved housing stock reaches poor families, an estimate as
high as 5 million poor families in substandard housing would be produced.
�,,
I
2
net ove_rall increase.
Moreover·, in some' places and for some groups' "natural
forces" may exacerbate the problem in the years just ahead.
Low
!
income
f
families presently living in substandard housing are less mobile and have
more deviant characteristics than thoae who were able to take advantage of •
the filtering process during the 1950s.
And such forces as zoning and sub-
division controls are likely to present new impediments to the distribution
1 ·
downward of _standard housing.
That . the current welfare system --- an ex.am.~le
~
of the pure income approach to housing --- has not produced larger results :is
another argument for seeking substantial approach to the supply side of _theI
equation.
Obviously, some improvement will occur naturally and one must assume
(
too that cash income maintenance programs wi ll meet i ncreasing portions of _/
family income de ficit s.
Reasoning fr om 4 mi llion families and indiv iduals
in s ubstandard housing in 1964 and add i t i onal millions pay ing more than
the y c an affor d for st andard hous ing, one may e stimate the object ive more
or less a t wi ll .
OEO has es t imat ed that the ob ject i ve should be pi t ched
I
J
to the expec t a tion tha t the me di an i ncome of families who should be reache d
would be $3, 000 ( f or a f ami ly of fo ur ) .
From th is base, one must de t er-
mi ne an overall objective within t he target date of five or six years.
Developing a Program.
In a pproaching the developmen t of a program
it is necessary to judge what may be built and what may be reclaimed.
Such
{
an approach represents.more than simple economy.
It allows room for famiU.es
that may wish not to give up thei r homes and provides a pattern for contintled
••
I
·
• I>
I
II
I (
11
•,'
�.-
.t
3
maintenance of the housing supply.
In the decade from 1950 to 1960, some-
thing less than one-fourth of the net increase in standard dwellings represented rehabilitated units.
On one hand, there has been considerable
reduction in the stock of housing that lacks plumbing facilities and is
comparatively easily rehabilitated.
On the other hand, new aids are
available for rehabilitation and new effort is to be invested in it.
tt
is, in any event, necessary to make some assumption about the proportion
of standard housing that would be secured by rehabilitation and the proportion that would be built new.
Similarly, it is necessary to make judgments about the geographic
distribution of additional standard housing.
Although substandard housing
is disproportionately distributed in rural areas, some number of the people
now using it wi 11 be seeking housing i n urban areas.
Finally, plans for a
substantial program should include consideration of staging a buildup of
the construction industry.
For example, a net increase of 1 million units
a y0ar might be built up to at the rate of 200,000 or 300,000 each year for
several years.
The supply of housing for low-income families can be increased either
through government incentives to "the private sector or through direct construction by public housing authorities.
Incentives to the private sector
include -subsidization of land costs and reduction in the cost of bon:owing
building capital (low interest loans or subsidized interest rates).
I'.
, .. ,.
· 11 · •
Use of
�.,
4
these aids provides an attractive incentive to private builders (and rehabilitation contractors) while permitting some control over the allocation
of benefits and rentals or sales prices.
However, these forms of assistance
are not sufficient to produce housing in the $50 a month range.
poor fam:1,.lies must also be subsidized.
To do this;
A program of the JJ1,B.gnitude being
described might be fashioned entirely out of two elements
rental or
purchas.e assistance and interest and land subsidization.
The obverse side
of these assistances are conditions as to beneficiaries and uses.
Obviously, Jll,S.ny variants of the two elements are possible and alternative programs may be fashioned as well.
Related questions that would arise
include the uses and place of code enforcement, the type of research that
might be most productive, the special ne.eds of rural areas, the niethods. of
assuring desegregation, and related needs for providing public and social
services.
l' '
�
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
ot
The Department of Housing and Urban Development
and
The Office of Economic Opportunity
CONFERENCE ON HOUSING FOR, THE POOR
May 23-24, 1966
Washington Hilton Hotel
Washington, D.C.
Agenda for
CONFERENCE ON HOUSING FOR ‘'TIll: POOR
Department of Housing and Urban Development
and
Office of Economic Opportunity
May 23-24, 1966
Washington, D. C.
Purpose: The purpose of this Conference is to evaluate the feasibility of
providing several million additional standard housing units within the next five
years, at prices the poor can afford. We are seeking from this Conference (1) a
summary of what we do and do not know about how the poor are housed, in physical,
economic and social terms; and (2) identification of alternative programs or
combinations of programs and implementation strategies, that might make decent
housing available for the several million poor households that would otherwise
occupy substandard or overcrowded units by 1970.
Program
Monday, May 23, 1966
9:00 a.m. Opening Remarks Sargent Shriver, Director
Office of Economic Opportunity
Robert C. Wood, Under Secretary
Dept. Housing & Urban Develop.
9:15 a.m. Conference Procedures Dr. Morton J. Schussheim
Director, Office of Program Policy
Dept. Housing & Urban Develop.
Mr. Alvin L. Schorr,
Deputy Chief, Research & Plans
Office of Economic Opportunity
9:30 a.m. Statement of Problems and Professor Charles Abrams
Its Dimensions Columbia University
(The number of units and poor people in need of better housing}
the extent to which rehabilitation and/or clearance are
required; the costs involved; present locations of substandard
units; composition of occupants by race, age, size and family
composition; the national goal.) ,
11:00 a.m. Social Issues Professor Nathan Glazer
University of California
(The questions of deghettoizing the poor and particularly
the nonwhite poor; the supplemental educational, counseling
and back-up services required; the problems of a means test
and establishing priority criteria; the attitudes of poor
and non-poor to this housing; the difficulties and oppor- ©
tunities of relocation. Should standards be reduced, e.g.
no air conditioning; room sharing; smaller room size; etc...)
1:00 p.m. LUNCH
Monday, May 23, 1966 (Cont'd)
5
2:30 - 5:00
Tuesday, May 24,
Technological and Land Use Issues Richard J. Canavan
National Association
of Homebuilders
(The type of housing required and its location; the
availability of land; architectural and city planning
concerns, the technological problems and opportunities
of a large-scale building and rebuilding program; the
abilities of existing or proposed institutions to
implement the program; prospects for cost reduction.)
9:30 a.m.
12:00
2:00 =- 4:00
1966
Economic Issues Professor Chester Rapkin
University of Pennsylvania
(Alternative means of financing the program; the a
effect on the economy of a multi-billion dollar
program; the effect on the total housing industry
and construction costs; acceptable standards of
Space and quality; the effect on the values and
condition of existing housing and neighborhoods;
efficiencies that might result from a reevaluation
of the economics of the housing industry.)
LUNCH
Program Issues Dr. Louis Winnick
Public Affairs Program
The Ford Foundation
(The types of programs to meet the objective;
possible expansion or redirection of existing
programs and the invention of new kinds of
programs; possible number of units to be developed;
the phasing and possible mix of programs over a
several-year period.)
List of Invited Participants
Conference on Housing for the Poor
Mr. Charles Abrams
Professor of City Planning
Columbia University
Mrs. Ruth Atkins
Community Representatives
Advisory Council
Office of Economic Opportunity
Mr. Richard J. Canavan
Staff Vice President
Builder Services Division
National Association of Homebuilders
Mr. Albert M, Cole
President, Reynolds Metals
Development Corporation
Dr. Robert Dentler
' Center for Urban Education
Mr. John Eberhardt
National Bureau of Standards
Professor Bernard Frieden
Department of City and Regional Planning
Massachusetts Institute of Technology
Mr. Robert Gladstone, President
Robert Gladstone and Associates
Professor Nathan Glazer
University of California
Dr. William G. Grigsby
Institute for Environmental Studies
University of Pennsylvania
Mr. Nathaniel Keith
Consultant
Dean Burnham Kelly
College of Architecture
Cornell University
Mr. Saul Klaman
Director of Research
National Association of
Mutual Savings Banks
Mr. Arthur Levin
Potomac Institute
Honorable Sherman Maisel
Board of Governors of the
Federal Reserve System
Honorable Arthur Okun, Member
Council of Economic Advisers
Professor Chester Rapkin
Institute for Environmental Studies
University of Pennsylvania
Mr. Nathaniel H. Rogg
Executive Vice President
National Association of Homebuilders
Dr. John R. Seeley
Chairman, Department of Saciology
Brandeis University
Mr. Miles Stanley
National Advisory Council
Office of Economic Opportunity
Dr. Louis Winnick
Public Affairs Program
The Ford Foundation
Housing Poor Families
. The Problem. A program to house all the nation's poor in decent
onstage at Sante ‘thay can afford contains two distinguishable elements:
1) how to improve the housing conditions of those presently living in sub-
standard quarters; and 2) how to lessen the financial burden of those who
live in standard quarters at the price of devoting an excessive burden of
chase income for housing. OEO has estimated that upwards of 4 million poor
families and poor unrelated individuals in 1964 lived in housing that was
dilapidated, lacked plumbing facilities, or was overcrowded = The number
who overpay for standard housing is harder to estimate but is large. For
example, in 1960 rent-income ratios were computed for 5.7 million tandttee
with incomes under $3,000. 4.4 million of them were paying 25 percent of
their income or more for rent. An additional .5 million were paying be-
tween 20 and 25 percent of their incomes.
In theory, housing needs of poor people should decline because of
anticipated declines in the proportion of families who are poor and because
of continued upgrading of the total housing stock. Between 1950 and 1960,
however, poor families received only 2.5 million standard units out of a
net overall increase of 19 million. That is, families representing 30 per-
cent of the total in 1950 and 20 percent in 1960 showed 13 percent of the
1/ The incidence of housing characteristics in 1960 was applied to 1964 data
about the poor population, producing a total of 4.1 million in such units in
1964. If one proceeds alternatively from the housing stock itself and the
rate at which improved housing stock reaches poor families, an estimate as
high as 5 million poor families in substandard housing would be produced.
net overall increase. Moreover, in some places and for some groups, "natural
forest! aay exacerbate the problem in the years just ahead. Low income
families present ly living in substandard housing are less mobile and have
more deviant characteristics than those who were able to take advantage of »,
the filtering process during the 1950s. And such forces as zoning and sub-
division controls are likely to ocidens ade impediments to the distribution
downward of standard housing. That the current welfare system -~- an example
of the pure income approach to housing =-- has not produced larger results ‘is
another argument for seeking substantial approach to the supply side of thd
equation. :
Obviously, some improvement will occur naturally and one must bane ;
too that cash income maintenance programs will meet increasing portions of |
family income deficits. Reasoning from 4 million families and individuals
in substandard housing in 1964 and additional millions paying more than
they can afford for standard housing, one may estimate the objective more
or less at will. OEO has estimated that the objective should be pitched
to the expectation that the median income of families who should be reached
would be $3,000 (for a family of four). From this base, one must deter~
mine an overall objective within the target date of five or six years.
Developing a Program. In approaching the development of a program
it is necessary to judge what may be built and what may be reclaimed. Such
an approach represents more than simple economy. It allows room for families
that may wish not to give up their homes and provides a pattern for continned
maintenance of the nateius supply. In the decade from 1950 to 1960, are
thing less than one-fourth of the net increase in standard dwellings rep-
resented rehabilitated units. On one hand, there has been considerable
reduction in the stock of housing that lacks plumbing facilities and is
comparatively easily rehabilitated. On the other hand, new aids are
available for rehabilitation and new effort is to be invested in it. It
is, in any event, necessary to make some assumption about the proportion
of standard housing that would be secured by rehabilitation and the pro-
portion that would be built new.
Similarly, it fs necessary to make judgments about the geographic
distribution of additional standard housing. Although substandard housing
is disproportionately distributed in rural areas, some number of the people
now using it will be seeking housing in urban areas. Finally, plans for a
substantial program should include consideration of staging a buildup of
the construction industry. For example, a net increase of 1 million units
a year might be built up to at the rate of 200,000 or 300,000 each year for
several years.
The supply of housing for low-income families can be increased either
through government incentives to the private sector or through direct con=
struction by public housing authorities. Incentives to the private sector
include subsidization of land costs and reduction in the cost of borrowing
building capital (low interest loans or subsidized interest rates). Use of
these aids provides an attractive incentive to private builders (and re-
habilitation contractors) while permitting some control over the allocation
of benefits and rentals or sales prices. However, these forms of assistance %
are not sufficient to produce housing in the $50 a month range. To do this,
poor families must also be subsidized. ‘A-program of the magnitude being
described might be. fashioned entirely out of two elements --- rental or
purchase assistance and interest and land subsidization. ‘The obverse side
of these assistances are conditions as to beneficiaries and uses.
Obviously, many variants of the two elements are possible and alterna-
tive programs may be featitonad de well. Related questions that would arise
include the uses and place of code enforcement, the type of research that
might be most productive, the special needs of rural areas, the methods of
assuring desegregation, and related needs for providing public and social
services.
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Box 22, Folder 18, Document 1
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/2ff9a4b7c64acf8a18ac97bffb7bb14b.pdf
cd1b3e3fa61c6043f3ed6117c8610121
Scripto
Transcription
A written representation of a document.
I
STATEMENT ON URBAN DEVELOPMENT CORP.
One area the Federal government has neglected in its effort
to make lower cost housing av~ilable is the use of technology and
other innovations to help reduce costs.
..
Therefore, the idea of establishing an urban .,development
~orporation to create a large enough "market" in the field of
rehabilitation so as to induce innovations is an attractive one.
~
I
I
The need to explore all ways of encouraging rehabilitation of
sub-standard housing is
great.
However, there are a number of uncertanties and risks involved
in launching a UDC program.
To begin with, it is unclear to what extent i echnological and
institution j innovations can reduct costs.
Furthermore, the economic
feasibility of the program, and therefore the assumptions on the degree
of financial support needed, is highly sensitive to such factors as
acquisition costs, rehabilitation costs,and mortgage terms.
In addition, the program cannot be started small.
I
I
It must be
launched on a large enough scale to create the necessary "market" for
innovation.
Therefore, the program must have top-flight leadership,
and it must have a firm commitment on the availability of 22l(d)(3)
below-market funds, FNMA special assistance, and rent supplements.
Given the proposed 30,000 unit target for the first two years
and given the need to operate on a scale of around 10,000 units in
any city, it should be understood that the program will have to be
---
limited to a small number of cities.
i
I
/
�,
It should also be understood that no matter what cost-savings
may be achieved through innovation, major subsidies in one form
or another will still be required to meet the housing needs of
\
the poor.
Recommendations
The Task Force therefore recorrnnends:
1.
That a program along the lines proposed by HUD be
inaugurated to test the capacity of UDC to stimulate technological
innovations.
2.
That the UDC should seek to encourage and to assist-through ·
training, technical assistance, loans and otherwise-- the formation ·
of competent and qualified local non-profit organizations to help
carry out its mission.
3.
That firm commitments be made on the availability of
sufficient 22l(d)(3) below-market funds, FNMA special assistance
I
funds, and rent supplement funds to meet its program objectives.
I
I
4.
That a clear understanding of the relationship of the UDC
to existing local agencies concerned with housing and urban development
be worked out before the program corrnnences .
5.
That careful consideration be given to explor}t'\ith those
most concerned possible political acceptance• of a UDC program
involving new construction as well as rehabilitation.
--
�
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
STATEMENT ON URBAN DEVELOPMENT CORP.
One area the Federal government has neglected in its effort
to make lower cost housing available is the use of technology and
other innovations to help reduce costs.
Therefore, the idea of establishing an urban development
corporation to create a large enough "market" in the field of
rehabilitation so as to induce innovations is an attractive one.
The need to explore all ways of encouraging rehabilitation of
sub-standard housing is 22> great.
However, there are a number of uncertanties and risks involved
in launching a UDC program.
To begin with, it is unclear to what extent‘echnological and
institutioned innovations can reduct costs. Furthermore, the economic
feasibility of the program, and therefore the assumptions on the degree
of financial support needed, is highly sensitive to such featovs as
acquisition costs, rehabilitation costs, and mortgage terms.
In addition, the program cannot be started small. It must be
launched on a large enough scale to create the necessary "market" for
innovation. Therefore, the program must have top-flight leadership,
and it must have a firm commitment on the availability of 221(d) (3)
below-market funds, FNMA special assistance, and rent supplements.
Given the proposed 30,000 unit target for the first two years
and given the need to operate on a scale of around 10,000 units in
any city, it should be understood that the program will have to be
limited to a small number of cities.
It should also be understood that no matter what cost-savings
may be achieved through innovation, major subsidies in one form
or another will still be required to meet the housing needs of
the poor.
Recommendations
The Task Force therefore recommends:
1. That a program along the lines proposed by HUD be
inaugurated to test the capacity of UDC to stimulate technological
innovations.
2. That the UDC should seek to encourage and to assist--through
training, technical assistance, loans and otherwise-- the formation -
of competent and qualified local non-profit organizations to help
carry out its mission.
3. That firm commitments be made on the availability of
sufficient 221(d)(3) below-market funds, FNMA special assistance
funds, and rent supplement funds to meet its program objectives.
4 That a clear understanding of the relationship of the UDC
to existing local agencies concerned with housing and urban development
be worked out before the program commences.
5. That careful consideration be given to explorfWith those
most concerned possible political acceptancee of a UDC program
involving new construction as well as rehabilitation.
%
dH
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Box 22, Folder 18, Document 2
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/17865ec7d77cf4e5f9b37694f6456b25.pdf
06469b8f6d5ec2761eb30b9327e3bf84
Scripto
Transcription
A written representation of a document.
,•
.·•
"
'
.. .:..J -~. .;..,,....,~ -~
--'--L_
· - -~~ -
- - --
i
=·-
'
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'
Subcommittee on Exe cutive Reorganization of the
Senate Committee on Government Operations
Afternoon session - November 29, 1966 .
Witness~
Richard M. Scammon , Vice - President, Governmental Affairs
Institute , Washi ngton .
1
th' . Scarnmon testified on the need for a mid- decade Census, or an inter -
censal urban Census. He said that although the 1960 Census is out - of- date,
obviously the 197q census count won 1 t be ·available for five years.
A big factor in the obsole scence of data is the increased mobility of the
population . According to . Ya- . Scammon, there is a great need for area data
rather than figures from a city as a whole . I n the questi oning by
Senator Ribicoff this point was elabo:::-ated upon and it was stated that if
information had been available concerning the situation in the Watts
area of Los Angel es , the riots could have been avoided . Senator Ribi coff
said t hat when a census was taken of Los Angeles the bad figures from such
areas as Watts were offset by the figures f:::-om more affluent areas .
Senator Ribicoff pointed out that Yir . Cohen from the Department of ~:EW had
used figures which dated back to 1961 when he testified before the com.~~ t te e
and that government agencies cannot cure social ills without up- to - date
statistics which point definitively to the location of those 'ills .
Senator Rib i coff and lfir . Scammon both agreed that a mid- decade census is
ne cess ary . Senator Ribicoff mentioned that the Office of Eco nomic Opport u.,."li ty
is planning to take a special census in 1968 in st andard metropolitan ar ea s
to complile pertinent data on such statistics as the median family income .
- Vir . Sca.m.~on laid the blame for the fact that a census is taken only every
ten years on the Budget Bureau . He said that the costs involved are so
tremendous that the Budget Bureau would not agree to a more frequent census.
'
Method of t aking the ce nsus
Senator Ribicoff asked whether or not the method of ta..~ing the census is
important. He pointed out that a census was conducted in Watt s where
questionnaires were mailed to the 1·esidents. He questioned whether or
not people at these levels would be interested enough to return the complete d
forms.
Lack of data on adult male Negroes
Senator Rib ico ff also pointed out that i n the last censu s betwe en 15% and
~.r. Sc a~.mon rep lied t hat
there was a slippage in less afflue nt areas of cities, but he did not know
whether Senator Ribicoff's percentages were entirely correct.
2Cf/o of adult male Negroes were mi ssed entirely.
)
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2
Advantages of a five-year census .
Senator Ribicoff said that abnost all grant programs are based on the
number of people and their needs . He claimed that we must wei gh t he
advantage s of a five -year survey in relation to these programs . He said
that a · f i ye-year census would be better for decision ma.~ing by such
administrat ors as the Secretary of h'UD .
Central location for statist ics.
Senator Ribicoff also asked whether there should be a central place for
t he gathering and keeping of statistics, rathe1· than allowing each Department to have operations of its own . ifi r . Scammon sai d that a task forc e
heaaed by Congr essman Gallagher r ecommended s et t ing up a cent r al ban.~ for
statistics, but that a big concern of the Task Force was the right of privacy
of individuals in responding to questionnaires. Senator Ribicoff contended
that where the information was merged, th~ pr.oblem of confidentiality was
lost.
Problems
Senator Ribicoff
to get people to
forei gn areas of
in orde~ to gain
said that the problem of taking an urban census has been
do the work . It was also poi nted out that in problem or
a city, t he census takers must be famili ar with the area .
the confidence of the people who are interviewed.
Spending in.cities
Senator Kennedy asked through the _Chainnan whether it is possible to
determine .how much the government is spending i n ea ch city to rebuild .
He wants to know how we can get better figures . Mr . Scam..'llon said that
this information should be available from the Census Bureau or through
the Subcommittee.
Senators P_!esent:
Ribicoff
Javits
�
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——
poowss
‘ 4 (\Juar,
Subcommittee on Executive Reorganization of the
Senate Committee on Government Operations
fternoon session ~ November 29, 1966.
Witness: | Richard M. Scammon, Vice-President, Governmental Afrairs
Institute, Washington.
Mr. Scammon testified on the need for a mid-decade Census, or an inter-
censal urban Census. He said that although the 1960 Census is out-of-date,
obviously the 1970 census count won't be available for five years.
A big factor in the obsolescence of data is the increased mobility of
population. According to.Mr. Scammon, there is &@ great need for area
rather than figures from a city as a whole. In the questioning by
Senator Ribicoff this point was elaborated upon and it was stated that i
information had been available concerning the situation in the Watts
area of Los Angeles, the riots could have been avoided. Senator Ribicofr
said that when a census was taken of Los Angeles the bad figures from such
areas as Watts were offset by the figures from more affluent areas.
Senator Ribicoff pointed out that Mr. Cohen from the Department of HEW had
used figures which dated back to 1961 when he testified before the committee
and that government agencies cannot cure social ills without up-to-date
statistics which point definitively to the location of those ills.
Senator Ribicoff and Mr. Scammon both agreed that a mid-decade census is
necessary. Senator Ribicoff mentioned that the Office of Economic Opportunity
is planning to take a special census in 1968 in standard metropolitan areas
to complile pertinent data on such statistics as the median family income.
-Mr, Scammon laid the blame for the fact that a census is taken only every
ten years on the Budget Bureau. He said that the costs involved are so
tremendous that the Budget Bureau would not agree to a more frequent census.
Method of taking the census
Senator Ribicoff asked whether or not the method of taking the census is
important. He pointed out that a census was conducted in Wetts where
questionnaires were mailed to the residents. He questioned whether or
not people at these levels would be interested enough to return the comple
forms. .
Lena
bea
Lack of data on adult male Negroes
Senator Ribicoff also pointed out that in the last census between 15% and
20% of adult male Negroes were missed entirely. Mr. Scammon replied thet
there was a slippage in less affluent areas of cities, but he did not know
whether Senator Ribicoff's percentages were entirely correct.
Advantages of a five-year census
Senator Ribicoff said that almost all grant programs are based on the
number of people and their needs. - He claimed that we must weigh the
advantages of a five-year survey in relation to these programs. He said
that a five-year census would be better for decision making by such
administrators as the Secretary of HUD.
Central location for statistics.
Senator Ribicoff also asked whether there should be a central place for
the gathering and keeping of statistics, rather than allowing each Depart-
ment to have operations of its own. Mr. Scammon said that a task force
headed by Congressman Gallagher recommended setting up a central bank for
statistics, but that a big concern of the Task Force was the right of privacy
of individuals in responding to questionnaires. Senator Ribicoff contended
that where the information was merged, the problem of confidentiality was
lost.
Problems
Senator Ribicoff said that the problem of taking an urban census has been
to get people to do the work. It was also pointed out that in problem or
foreign areas of a city, the census takers must be familiar with the area.
in order to gain the confidence of the people who are interviewed.
Spending in. cities
Senator Kennedy asked through the Chairman whether it is possible to
determine how much the government is spending in each city to rebuild.
He wants to know how we can get better figures. Mr. Scammon said that
this information should be available from the Census Bureau or through
the Subcommittee. ,
Senators present:
ibicorf
Javits
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Box 22, Folder 18, Document 3
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/26a04af2918076fe0e30c74d42dc2f81.pdf
335e450de0c9b25b8cc1322cb93c8f63
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Transcription
A written representation of a document.
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Hea:ci ngs before the Subccmmi tt ee on Executive Reor gan i ze.t i. or:.
o f the Senate Govermr..ent Ope rations Corr~tlittee
Afternoon session :
Witness :
Novembe r
30, 1966
Judge GE!org e Ed,·re.1·ds, U. S . Court of Appeals, 6th Circui t ,
F orme r Police Co~.missione r of the City of Detroit; 1962 and
1963.
J udge Edwards outlined for the Subccmmittee the p::.·oble!ns of law enfor c ez:-.ei1t
in the large citi es of the U. S . with examples drawn la1· ge ly f:r ora his o~-,n.
experi ences i n the city of De t::.·oi t . The J"G.dge emphasized tl":e prob l em::: of
the Negro co:r,!nuni ty and the fac t that the a ttitude s of Negroes to,-, ards Ls:w
enforc ement are the product of the ir early environr.1ent mainly in t he South.
J udge Ea.war ds said that r.1ost crh--rie is cc:r.r.li tted by Neg::.·oe s and inflicte d.
[ on othe rs of their own race . He said, hc,;ever, that the large r::2.jority cf
· Negroes are i n favor of l aw enforc e1-::ent and want to see it i::1~roved .
The Judge made the followi ng sugge stions :
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16 .
Fi nd out more facts in regard to c o;·:iplaint s about police brutality .
Transfer trouble:nakers on a police force and those who use bru.tali-::.y .
En d in,restigative arr ests .
Increase police in high crime prec i nct s .
Fe ci.e r e.l government must help loc a liti es co:n"':Jat organized c rime .
Professionalize policemen by upgradic·g their stan dards throue;h bette::.'
trainin g .
Prorr,ot~ Negroe s on an eq_ua l basis with uh i {;es .
Ban polic e dogs in raci al d.err.or2str at ions .
I ntegrate p:)lic e t eams .
Ra i se the pay of po l ic emen .
Hir e more polic er.ien .
Coordinate l aw enforcement agenc i es .
Esta"':Jlish a i'iat ional Police Tr aining College .
Est ab lis h hi gh l e vel board..s within police de:partn,ents to i nvestigate
charges a g ai:1st policerr.en .
Federa l grants -i n - i i d should b e made for police training .
End the autonor!lous :-iature of l aw enfo:r·c e ment bodies .
Witness :
l
Robe r t Coles , M.D., ~ese a rch Psycl: iat ris t , Es.rve.::.·d Un i versity
Health Servic e s .
Dr. Coles is a child psychiatrist w:'lo ,,;orte d exten s ively i ri the So·t.1t h e.n.i
studi e d the effect of racial ten s ion on J:egr0 child.::.·en . He stated th~t t he
young Hegro children who fir st att e::-ided white schools i n the S01;.to. and ,_.;~-:o
h ad to er2du.re mar:y torments and ant agonism siowed a great stre ngth of
chara ct e r. He said that i t was a puzzle::;e nt to him that st::.·e s s yr odu2e s ;-:,c-r-::
str ength of character tha,, an envil·o,Jn-21;_t of lu.."\.-ury 01· midcile clas s tr""r: q_uili ty . Eo1.-rever , the Doctor poi n.t e d out that afte::.· the 2.g2. , of twe l ve ,
unde :cpr i vileged c hildren b egin to r eali z e that ob e d i ence to the Bibli c2.l
teac h in g s of their child...hood will r2ot pay off. P.ft e r thi s re a liza~ ion t'::le
�,
l
---::---
2
.
l
s l urn ym.rt:·.
.".·=;rgoes 1·:i1at psycnia trists c all " death of t h e t ea::-t . " 'I:'rseY
then oui te
·· "=D b e co:ne a nti - so c i a l a nci. turn t o a. l i fe of c:::.- ~,e or
deli nq_uen c;-r . .::'b..e Doctor pointed. ou t tr..at sor~e d e linquents do ,,,.co:1g b e c 2.u s 2
they c an f L . i. ::oth i ng r i ght , nothi ng signi f ic ant and ch a l le r..g i ng t o do .
Main questions raised. ·oy the Su"!:l co!!~:i.i ttee :
1.
Rac};:et ee:..-ing i n shEn hous i ng .
Senator Kerille(\}r ask ed J udg e Ed,,:-2.rd.s whe the r orgc.nizeci crir.-.e pla.y s a ~ c._..,
i n the creat ion and. continuat io r.. of slur:: housi ng con cii tion s . The Juc'. ge
s a id that i t probabl y does and Sena to::.- Kenne ci.y tol d the Ch 2..iri,1an that
h e t hinks the Subcomnlittee shoul d expl ore thi s ~ossib ility .
! '
2.
Defense by citi e s a gain s t riotin ~ .
Senator Ri b i coff aske d the J 1.;.ci.ge Hhat a ci t y c a :1 do to d.e fend i ts e lf
a gainst r i oti ng and at wha t p o i n t the nat ional Guar d s:-::.ould. b e ca l l e d
_in. The Judge s a id t h a t all of his suggest ions HO"'c1ld help :prever.t
r iots , bu t once the ri ot had. c e gun i t c ou1d. be coun-c e1.· ac tec. on l y by
qu ick o:cgan~z a tion and gre a t r,,ob i l i ty of sub st antial forces on t he sic'.e
· o f the l aw . He said that t he f orce us ed mu s t b e ove r Ki.1el.:1.i ng a ,:d di s c i ~.)lined .
He be_l ie v e s that tne Nation a l Guar d s i2ould be c a lle d. to a riot sc ene
whe n ' police gur, i'ire i s n e eded .
3.
Cu l ture o f p-.:> ve:rty .
Se nator Ke n ne ciy a s}:e d Dr . Co l es whe t her th e r e is 2. cu l t uyc of -;:iove i't y
i n the U. S . 'I·:1.e Docto r 1-epli ed that h e does not t :ii ~ '- t ha-'c we reJ.lly
h ave a cult u re of povert y because pe op l ':! a:::e no l onge r i so:'..a teq. due t o
th e exis tenc e and ext e ns i ve n e s s o f a rr.a .ss r::edia o f corr.:,;c:.>l i c a t i ons .
Throug:1. TV a n d othe r me d i a p ::: a c-c i c a lly e v e ryone i n this country is a,.-ra:::-e
of t:C-1e oppo:ct w1iti es wh i ch ex i st o:r at l e a s t t h at ther e i s a nett e r i-,2:y
to live a l t hough the a tt a i ma.ent o f t h a :, l i f e i s not p o s s i b l r, .
lf.
B'J.ss i r. g of schoo l chi l clren .
L
Although D~ . Cole s thi rik s t hat the Eosto:1 e:>..--pe rin e r:t i n bus s i ng c hilclr2n
t o t he s u'::mrb s h e.s b e en qui te suc c e E:s lul , Senat or Rioico ff i ::,pli ed t=-,c:. t
i n hi s y i e1·r the ~;1oney. ::-: i ght better be spE:n t iri~yrov::.. ng s l ~-:--:. c: 0.ucc..t i on
gener a lly . Se nat o:r Ri bicof~ sai d t h a-'c h e d i ci r.o t th i nk t hat the p l a ci r.g
of very poor chi l dren in school s ':-:i t h a f f luent an d well fe d c hi l ci:::.· en
was p s y cholog ically goo ci. for t h e u nd.e r :;,:ci vi l ege d. c h i l d .
5.
Rehab L!. itat i on o f sl'.ll-:i. d,:e l lers .
~ a r.ybocly c cJ.:-, cha::: 6 e i: gi ve n s01:·.2~:1. i r.g t o rf aepll l i b8.edcre on .
Ser.atc:c Rib i coff a ::;ke d ,·,het ne r there i s ar..y h o-::;e fo:::- t ~12 :::ost -vio l e nt
rr1ert::> e r s of sllt7t c o:r_~11u1~i ti es .
1I·i-.:. e :8:> ctor·
t hat i n ::i s op i n2.on
Ee c ited as
ar~ exar::.p le t he a1itob io z;ra~!.i.;y c f lv:s.l col.2:-. X ,.,;10 1-:e.s f r cr:1 a r.::, st u~:foTt.1.L;.f.t =
far:1ily and ·w!".1 0 t ur ned a~-ra·:l ::'ro~n c. li f e of C!."'i 143.215.248.55e to b e ccr...e a l ea.:Iei-· o
�.
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L?_;-;_:i,~
3
6.
Mea!1s ,;:
·, ~h ; n g
There ,.;.·.
slurn cl:.i J.fu·en .
general ciiscus s ion of wl:.e t:ie r the vast amount of 1rconey beir_z
~catio!1 today is payi ng off . Senator Kennec..y '.·ras v e ry int e. ::.· e s"c e c..
i n findi ;;. _: ~-2tter ways to help slun c h ilfu·e:, .
spent o :-,
Senators present :
Ribicoff
Kennedy
�
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
Hearings before the Subcommittee on Executive Reorganization
of the Senate Government Operations Committee
Afternoon session: November 30, 1966
Witness: Judge George Edwards, U. S. Court of Appeals, 6th Circuit,
Former Police Commissioner of the City of Detroit, 1962 and 1963.
Judge Edwards outlined for the Subcommittee
in the large cities of the U., S. with examples drawn largely from his own
experiences in the city of Detroit. The Judge emphasized ke problems of
the Negro community and the fact that the attitudes of Negroes towards law
enforcement are the product of their early environment mainly in the South.
Judge Edwards said that most crime is committed by Negroes and inflicted
on others of their own race. He said, however, that the large magority
Negroes are in favor of law enforcement end want to see it imoroved.
eee
tee the problems of lew enforcement
4
ws
0
The Judge made the following suggestions:
Promote Negroes on an equal basis with whites.
Ban police dogs in racial demonstrations,
Integrate police teams.
- Raise the pay of policemen.
ll. Hire more policemen.
12. Coordinate lew enforcement agencies,
13. Establish @ National Police Training Collese,.
14, Esteblish high level boards within police departments to investigate
charges against policemen.
15. Federal grants-in-aid should be made for ee training.
.
1. Find out more facts in regard to complaints about police brutality.
2. ransfer troublemakers on a police force and those who use brutal
3. End investigative arrests.
h, Increase police in high crime precincts.
5. Federal goverment must help Localities combat organized crime
6. Professionalize policemen by upgrading their standards SnybuRh better
training.
7
8
9
10
16. End the autonemous nature of lew enforcement bodies.
Witness: Robert Coles, M.D., Research Psychiatrist, Harvard University
Heslth Services.
Dr. Coles is a child psychiatris
studied the effect of racial tensior
young Negro children who first attended white schools in th
had to endure many torments and antesonism snowed a grea
character. He said that it was &@ puzzlement to him that
here
ay
strength of character than an environment of luxury or =
quility. However, the Doctor pointed out that after th
underprivileged children begin to realize that abeatence
teachings of their childhood will not pay off, After thi
who worked extensively
on on Negro children,
xt be
'
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t
t
a tn Ae
od
@ oct
ba)
Er
tw cm ft
a Oo
em Rho w
Is
aes t
(3533.
2
slum youth tr They
then quite ive of crime or
delinquenc;. che Doctor pointed» out that some delinquents do wrong beceuss
they can fis... nothing right, nothing significant and challenging to d
Main questions raised by the Subcommittee:
1. Recketeering in slum housing.
Senator Kennedy asked Judge Edwérds whether organized crime pléys a part
in the creation and continuation of slum housing conditicns. The Juage
said that it probably does and Senator Kennedy told the Chairman that
he thinks the Subcommittee should explore this possibility.
2. Defense by cities against rioting.
Senator Ribicoff asked the Judge what e city can do to defend itself
against rioting and
at what point the National Guard should be called
in. The Judge said that all of his suggestions would help prevent
riots, but once the riot had besun it could be counteracted only by
quick orgenization and great mobility of substantial forces on the Sage |
of the law. He said that the force used must be overwhelming and discivlined.
He believes that the National Guard should be called to a riot scene
wnen police gunfire is needed.
3. Culture of toverty.
enator Kennedy asked Dr. Coles whether there is a culture of ¥
in the U. &, The Doctor replied that he does not think that we really
have a culture of poverty because peopls are ro longer isolated due to
the existence and extensiveness of a mass media of communications.
Through TV and other media practically everyone in this country
of the opportunities which exist or at least that there is 4 petite
to live although the attainment of that -life is not possible.
h, Bussing of school children.
Although Dr, Coles thinks that the Bosten experiment in bussing children
to the suburbs has been quite successtf cor Ribi Pas c
in his view the money. might better be roreyvi &
generally. Senator Ribicor? hat +
of very poor children in school t
wes psychologicelly good for
5. Rehabilitation of slum dvellars-
@ whether
apeeens
there is
The Doctor
eed eck Se as
ou
; (paar.
Sa —
.cthing slum children.
. i
There we. .. general discussion of whether the vast amount of money being |
spent on .cation today is paying off. Senator Kennedy was very interested
in findin., setter ways to help slum children.
Senators present:
Ribicoff
Kennedy
Dublin Core
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Title
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Box 22, Folder 18, Document 4
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/3c1e3da208e4a368aaff247394e82a3a.pdf
4a037e1bca19580491355060c1ec1e73
Scripto
Transcription
A written representation of a document.
.
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ITEM.S OF IllfrEREST RELATED 'I'O lfiJD RAISED
_t{J:
h-.:. . -
!ill/1.RHTGS OF
RIBICOFF SUBCQl.f:•.ffl'TEE ON EXECUTIVE REORGANIZATION
~m .,
- • st-...:~
December 2;
1966
J ~1ES M. HESTER; President, Ne'., York University
Mr. He ster evaluated the contribut i ons which New York University
and similarly situated educational institutions are malcini to the
improve~ent of urban conditions . _The shortage of available financi2.l
r esources creat ed by a lack of sup:9ort from public sources was
s een· as the major obstacle to the broadening of the uni versity role
in u rban affairs .
l.
The I mprovement of Research on Urb211 Problems
President Hest er stated that the effectiveness of university research
int o urban problems was limited by the need to proceed on a projectby-proj ect b asis . The availability of fu.~ds ade~uate to finance lo:1g term programs would l ead to an increased university r esearch contribution.
2.
[
The Heed for Greater Univers ity Participation i:-i the Ad:-r.in i stratio:1
of Federal Government Pro1; r a:ns Affecting the City
Senator Ribicoff stressed that the soluti on of urban problems depe:rJ.d.s
upon the :i;:_ecruitment of oual ified persons to carry out proGrams which
Congress ha s authorized . Unless the University can i nc:::·ease its
supply of such personnel, t he objectives of recently enacted l aws
will not be r ealized .
President He ster replied that N. Y. U_. was fulfill i ng its responsl;)l..Ll-v~to the city within the fr amework of existing finaYJci al resources .
GEORGE STEill~LIEB, Professor , Rutgers Uni ve r sity Uroan Studies Cer.te r
Mr . Sternlieb maintained t hat federal programs aimed at alleviating
subst an.dard housine; conditions have not achieved t heir obj e:cti ves
because f eder al hous ing policy has not t a1~en into account the
r ealities of the urban ghetto situation . The primary er:1l1hasis i n
urb a.YJ r ehabilitation should be on the r esponse of the persons. li vi:13
in slum conditions to the mea sures desi gned to help the:n .
1.
Public I e;norance o:f
FRI\.
pro~r2cr.s
!'fir . Sternlieb declared that the sm3.ll ghetto lane.lord usc:ally doe ::;
not know that FHA a s sistance is available. The a110.rc;1e ss of FriA
p rograms is lir.iited to l arge proper ty owner s .
.
�"
.
,----J - , ·- --- - - ~.. .___ ___ ;.,
···
2
2.
The I moact of FilA. stande.rds on Urban nehabili tat ion
!tr. Sternlieb emphasized that the adoption of more sensible fina..'1cing
arrangements in the field of low incor.i~ housing was ir,,perative . A
property 01-mer in the ghetto who sought to bring his parcel up to
FHA sta.'1dards would comrni t "econo!!li c suicide
T11e FHA st2.ndards
were uescribed as completely divorced from the housins market and
the capac ity of the neighborhood to sustain such housing .
11
3.
•
The Need for an Increased Emphasis on th·c: Promotion of Hor:ie
0',mership
Mr . Sternlieb maintained that the e::qJerience with the public housing
program indicated that better pnysical facilities will not produce by
themselves a corresponding improvement in living conditio~s. The G~etto
[ resident will not support m·ban rehabilitation unless it promis e s to
lead to some typ e of home ownership.
4.
The Desirability of Greater Administration Awareness of Urban
Froblerns
Senator Ribicoff criticiz ed the failure of execu-tive departments
generally to concern themselves with t he condition s that their progr2.:r.s
are designed to affect. He declared that the testimony of ~rr . Sternlieb
would enlighten Secretary Weaver and his associates in the Cabinet .
LEES. STERLING, Executive Director, Arr:erican Property Rights Association,
New Yor~ City
Mr. Sterling testified that the abolition of rent controls ar..d the
compulsory re - education of welfare _rec epients would be a large step
toward the solutiqn of New York City' s housing problem. He de"'-anded
that New York City rec,::ive no demonstr ation cities money until r ent
control imd welfare abus es were abolished.
,·
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= OS a ne cate ee en ea, S| ee
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ee
ITEMS OF INTEREST RELATED TO HUD RAISED AT HEARINGS OF
RIBICOFF SUBCOMMITTE® ON EXECUTIVE REORGANIZATION
ae
December 2, 1966
JAMES M. HESTER, President, New York University
Mr. Hester evaluated the contributions which New York University
and similarly situated educational institutions are making to the
improvement of urban conditions. The shortage of available financial
resources created by a lack of support from public sources was :
seen as the major obstacle to the broadening of the university role
in urban affeirs.
1. The Improvement of Research on Urben Problems
President Hester stated that the effectiveness of university research
into urban problems was limited by the need to proceed on a project-
by-project basis. The availability of funds edecuate to finance long-
term programs would lead to an increased university research contribu-
tion.
2. The Need for Greater University Participation in the Administration
of Federal Government Frosrans Atrecting the City
senator Ribicoff stressed that the solution of urban problems depends
upon the recruitment of qualified persons to carry out programs which
Congress has authorized. Unless the University can increase its
supply of such personnel, the objectives of recently enacted laws
will not be realized. ‘
President Hester replied that N.Y.U.. was fulfilling its responsibiliv:
to the city within the framework of existing financial resources.
GEORGE STERNLIZB, Professor, Rutgers University Urban Studies Center
Mr. Sternlieb maintained that federal programs aimed at alleviating
substandard housing conditions have not achieved their objectives
because federal housing policy has not teken into eccount the
realities of the urban ghetto situation. The primary emphasis in
urban rehabilitation should be on the response of the persons living
in slum conditions to the measures designed to help then. |
1. Public Ipnorance of FHA programs
Mr. Sternlieb declared that the small ghetto landlord usually does
not know that FHA assistance is available. The awareness of
programs is limited to large property owners.
a litte asa
fbte
eetrhbanes a P ce OE ae al ae Sk caimapetes Ee Nena sine
Lace
(pear,
po
2. The Imoact of FHA standards on Urban Rekebilitation
Mr. Sternlieb emphasized that the adoption of more sensible financing
arrengements in the field of low income housing was imperative. A
property owner in the ghetto who sought to bring his parcel up to
FHA standards would commit "economic suicide". The FHA stendards
Were aescribed as completely divorced from the housing market and
the capacity of the neighborhood to sustain such housing.
3. The Need for an Increased Emohasis on the Promotion of Home
Ownership
Mr. Sternlieb maintained thet the experience with the public housing
program indicated that better physical facilities will not produce by
themselves a corresponding improvement in living conditions. The Ghetto
resident will not support urban rehabilitation unless it promises to
lead to some type of home ownership.
hk. The Desirability of Greater Administration Avereness of Urban
Problems
Senator Ribicoff criticized the failure of executive departments
generally to concern themselves with the conditions thet their programs
are designed to affect. He declared that the testimony of Mr. Sternlieb
would enlighten Secretary Weaver end his associates in the Cabinet.
LEE S. STERLING, Executive Director, American Property Rights Association,
New York City
Mr. Sterling testified that the abolition of rent controls and the
compulsory re-education of welfare recepients would be a large st
toward the solution of New York City's housing problem. He deman
that New York City receive no demonstration cities money until rent
control and welfare abuses were abolished.
ep
aed
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Title
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Box 22, Folder 18, Document 5
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/5c146a6879fce208e7a554186b2bead9.pdf
b38bed40eb464f22608aad1678200e5b
Scripto
Transcription
A written representation of a document.
l
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ITEMS OF D .TTEREST RELATED 'I'O EUD RAISED Nr !illJ\RiiXGS OF
RIBI COFF SUBCOI,ii.U'FrEE OilT EXECUTI VE ru.--ORGAi'EZAI'ION
De c e mber
5, 1966
( mor ning )
CONS'l'.ANTINOS· IX)XIADIS J President , Doxi a dis As sociation
.
Vrr . Doxia di s ma intained that t he cri s is of urba:., s o ciety c oul d b e
·'
a llevi ated only t hrough an appro ach b ase d upon systematic k.nowledGe
of hu man _settlements . The gre at defe ct of existi ng urban develo:p;nen-;-,
p rograms according to 1-ftr . Doxiadis i s t hat they h ave a n i mp act on a
l imite d segme nt of the totality o f urba n existenc e . Ti1e s e effor ts
c onfine d t o a singl e area c annot produce a f f i r mitive r esults bec ause
the problem of mas s tra." lspor tation or t he d ilerr.ma of the c e ntral
cit y are integrally r elat e d to the broader p atterns o f humon
s ettlement. The main points r ai s e d in the t e stimony and d~ring t he
questioni ng p e riod wer e the following :
. •j
.I
j
I
I
-i
.l
I
I
-
1.
.!
The Fa i lure of Feder al Government Progr ams to Sol ve Urba:1 Pr ooler::s .
I
·:
Mr . Doxiad.is stated tha t t he public hou s ing and u r ban r e t'.ewal p:•: :
h ave riot pre ve nted a worsening o f t e e ur b a n s itu ation . The d e:::~;:·___ _
c itie s progr a m was de scrib e d as "a · small beginning in t he direc·:.; i o;: o::· ·
c oord i nat ed ac tion , s mall in size and small as c ompared t o t !'le a r e as
i t mus t cove r . " .
.i
. ,i
.,
'I
l
2.
The 11ee d f or Avo idin·g Incre sed Pr essu re on Urbe.n J1.re.e.s
Mr . Doxiadi s sue;gested t h2.t t:.1~ cri s i s of the cit i es ~ight be 2.ggravc:cted
by a substant i a l incre a se in f e d eral ex_penc1i tures for urb&.n d e ve l o:;:irr,3nt .
Ari e a s ing o f the p re s sur e o f exi s ti n[!; cit i es t hrough the c onstru::::ti on
of n ew urban c enter s s hould b e cons i d e red .
i
!
3.
Feder al P-.cor;rar.-1s as a M8 chan:i_sm fo r Accuirinr; I ncreased !(r,owled;,2
o f Ur ban Pr obl ems
Mr . Doxi adi s s t r essed t h a t an awarene ss of t h e i nt e rrela t e d chan1c te r of
urban p r oblems should l ead t o a n i nten s i fied s t udy of s oci al , e c onorr.ic ,
an d po_l i t i cal p a tterns pre va i l i r.g in u r ban areas . He urge d that c;ov::::c:.:.:::e:t::.:.
p r o2:ro.ms should b e u til i z e d to p:t ovide increased knowl edge of these ::i:3."./c,:.::::·:·,::; .
l~.
Th e Preserv at ion of Ouen S-93.ces
Mr . Dix i a di s declared t hat t he c onstruct j_on of public facili tief. in
s electe d areas would cnc ourac;c persons and b usi~esses to l ocate t~~m s e l v es i n a manner which would s erve the int ere::;ts of an enti:ce u rba:'l
r e 6 ion .
The c o:-iservat ion of open l ar,d b y the government is thus
n ecessa:cy t o the creation of an infrastructure of p'J.blic faciJ.ities
whic:, wou ld m8.ke po s sible orderly ur':)an deve lop:~!2nt .
5.
L
T11e ResoJut;_on of ti1e Urb2.,, Cri sis D2µ2..rids lJ:,on a Li n i t&.'c icn o;._~
Co~·.~:·.u:1 i_ .J~y J..u~·.o;·Le, ::~:,,-
.M:- . Dcn:iadis called for ov-2rall f-::!o.cre l govern~r,ent co:1t:::-o~ ;:,;: 'c:~,2 ]='-';·, . .::;:·:~,.
of' t'r...t:-c::.!1 st:t"tle t.:i:::"t . '"J:i1t..; .:.cnLi:1l10:~i cn o~· c o~1::riu[.1ity a ~ ~v.:1c.:1:· . .,~.t -~·1 1.--..:: ..._..~ v.
to its owi d2ve lor,,.2::-.t \-; ill :9rc::1-<c2 a i-iorseni.ns or t he
'X::'-:::L:
c:::-is.:.s .
- - ·····
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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
ITEMS OF INTEREST eee TO EUD RAISED AT HEAR INGS OF
RIBICOFF SUBCOMMITTES ON EXSCUTIVE RNORGA NIZATION
December 5, 1966 (morning)
CONSTANTINOS DOXIADIS, President, Doxiadis Association
Mr. Doxiadis maintained that the crisis of urban society could be
alleviated only through an approach based upon systematic knowledge
of human settlements. The great defect of existing urban development
programs according to Mr. Doxiadis is that they nave an impact on 24
limited segment of the totelity of urban existence. These efforts
confined to a single area cannot produce affirmitive results because
the problem of mass transportation or the dilemma of the central
city are integrally related to the broader patterns of humen
settlement. The main points raised in the sreuluoNy and during the
questioning period were the following:
1. The Failure of Federal Government Programs to Solve Uroan Prodlems.
Mr. Doxiadis stated that the public housing end urban renewal pr- 7
have not prevented a worsening of the urban situation. The dans... --
cities program was described as "a small beginning in the direction oF
coordinated achion, small in size and sine, as compared to the areas
it must cover.".
*
2. The Need for Avoiding Increased Pressure on Urban Areas
Mr. Doxiadis suggested that the crisis of the cities might be egrravated
by a substantial increase in federal exvenditures for urban development.
fn easing of the pressure of existing cities through the construction
of new uroan centers should be considered.
3. Federal Programs as a Mechanism for Acquiring Increased knowledse@
of Urban Froblems
Mr. Doxiadis stressed that an awareness of the interrelated character of
urban problems should lead to an intensified study of social, econ Ones
and political patterns prevailing in urban areas. He urged that gover
programs should be utilized to provide increased knowledse of these patteax
kh. The Preservation of Oven Soaces
Mr. Dixiadis declared that the construction of public facilities in
selected areas would encourage persons and businesses to locate them-
selves in a manner which would serve the interests of an entire urban
region. The conservation of open land by the governinent is thus
necessary to the creation of an infrastructure of public facilities
wnicn would make possible orderly ursan developiisnt.
5. Urben Crisis Depends Unon a Limiteacicn ar
Mr. Doxiadis called for overall federel governpent control of the payvisrns
of human settlement. Tne continuation of commualty autoneny wath re. ce
development will produce a worsening of the urben crisis.
Dublin Core
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Title
A name given to the resource
Box 22, Folder 18, Document 6
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/d4a46e29e326a2066880c2271445d43b.pdf
fb16367912897b46fbade3db2d8d369d
Scripto
Transcription
A written representation of a document.
------··~
-!
---..~ ~-~ ~-~---------<--
Subcommittee on Exe2utive R~orga.~i z aticn o f the
Ser.ate Co~mittee on Government Operatio~s
Afternoon s ession :
De c ember
5) 1966
Witne ss:
Walter P. Reuther
Subj e ct:
Problems of the Citie s
Mr. Reuther was accompanied by Jack 'I'. Conway former Deputy Di1·ector
of the Housing and Ho;:;;e Fi nance Agency and OEO . Mr . Re utrse:::- c.e2..i ver2c:
h is statement on behalf of t he six ar..d one-half millicn industrial
workers re:presented by t h e I ndustrial Ur,io:1 Depart ment of the A.FL-CIO
and the millioYJ. and one -ha lf we:nbers of t he United Automobile , P.eros~13..2e
and Agricultural I :Ylp1,.ement Workers of P.neric a.
He advocated a weaving of all the el ements, h ousing, fu"lti - pollution
control and others , in co~oating urban blight . He s ai d that these
efforts must entail the n;ost participation possibl e by eve-:::yone
affected {3-:nd there must be a ma..xi mum coordir:.ation of effort . ·
He also said that t he problen:s of cit_ies are b eyond the e conor::ic c a:pf,::.::..li ti es
of the loc a l gcvernr!lents . However, h e feels t hat the real drive and U"lr 'J.st
rr.ust come fr or.i the l ocal level .
[
!fir . Reuthe r proposed the creation of a I~ional Non:pro:;:i t
~-I0J~ng
Coruorat.."!_.on consistin g of the be st :ni:1cs fro::i7.a"oo::i.· ,- L:.na:-,c"e } i!:o.ust ·,y,
education, etc . He prefers t ,1is nongovernme ntal type oi' cor~)o1·at i o0.
b ecause sucn ari organiza.ticn would r:.ot be entrenched i::i. t:ic bm·e:c..uc :::-2.'.:, ic
p atte rns which are to be found in the governr.1ent . He also -chi::i:~s t:1...1.,
thi s type of orga.vi.iz ation would not involve in- fighting i·:hici"l is
sometimes prevalent _in governr:1ent oi ga.n iz ation s . In h is o::_:iinion } a
private orga..."lization would b e much m-::ire :flexible .
Jl"u" . Reu'cher , in suggestinG tnat the taslt cf r etuilding t::.e city be
done by the tot al co~11!Lunity ) de sc-:::ited the Detroit i<etropolitan Ci ti :-t,ei~s '
De velopmcr,t Aut:iori ty , of wl1ic:1 r.e i s no',, chairr.'.lan . He said tl:.at t r,j_s
Author:i.. ty j_s tryi ng to r 2bui2..d the city a ncl to qu2.lify Detroit a s a
D21r:onstration City. 'I~~ is Authority now h as t he .s.cti v 2 :participatio,. o:?
industry , :i:etail stores J churcr,es , c ivil r iG}lts groups 2.:.1c. r,.;21:. y othe::r::, .
He said the y are trying to c :r·eate a co~,11;uni ty :;iar"cnersni:p .
v'
.t-1,r . Re uther describ e d the three kinds of r:,o:ney w:1ic:1 t he g ::Ol;:;? ,;ill 1..:se
to build hou sinJ as " seed mon e ; ,) developr.,ent rr.oney and r:--.orts2.::.;,2 u:c,.e~-' .
}Ie s aid that t De seed· tj'!OD·::!Y is nee Ce d t o r.12.ke the plans a:~d s·c1143.215.248.551.lc..: c
int erest in the progra~n J bt1.t \·,· ill not b e- r eturned to the dc~ors or t:~s
goverr:.r;;ent i f rr:ac.e thro~isn grants . In thi s rega r d, he se.5- d that unic.:1
p ens ion f ur1ds could p robably b e 'J.sed only for mortgage mor.ey b e cause
the funds are cont.rolled by :Beards w0ich ,~t"J.st de c;ide ,-;het:--.. er t ;:.e inv e "'i:-::,2:--!t
of the r::ioney is se:cm· e . He s a id t hat see cl r::o!'.ley a.n.d d evelopr.'!e,1t mo:-,=--:;' ·.,c,, :2.c',
not "be a. pe:rr:-1i ss ible investr.1ent for t11ost pe!1sior: J:\1rAG.s .
·--
�.i-J _____· - - - - - - :'1
-~--"---~
2
Oi:e fu_r1ction of the nonpro£'i t co:c-poration ; acco:cdine; to E:_·. Re1..i.:-her;
would be to stir.ml a te and e:1cot.n-age t:-.e ouild:Lr:.s o:.': low i nco,.1e h cusi r.:;:;
by g ivin 6 technical assista n c e to builder.:; wbo would 0:9::::i·ccte fo::: a
profit. He ·s2.id t~>iat t ::1e:·e wouid necessa1·il:,· be ex-.9e1·ts 2.v:1.ila-ole o:c
on call. He said that the key t o t he ·,,l-wle p:c-oblen; of ,r,:oviding lo,.;
i n c o:ne housing is to demonstr2.te the p ra".!t ic al c 2.:p3.bili ty 0£' sa.'-< :in~
public plmming compatible with :9r :!.sate plannine; a:1d builo.i::J.G ·
' .
'
Kr. Reuther s aid that h e is very e!1thl,siastic a':)out the Demcnstrat i ons
Ci t ie s Bill. .However ) he criticized Congr ess ' attitude to-.,·a rn ·ct Le
appro:;iriation o:;: n,oney for don;est i c programs . He thinks ti~a t these
prograo,s s hould be fu..rided a...½.ead of tic:2e ; so that the :Oe:92.rtrne:ot::; ,-,ill
k n ow what mone y is available and have the money in tb1e to pl a.., 2.::e::c.ci .
He thinks long term c ommi tt:n2nts should be mao.e for c.or,11:: sti c proc1·a::is
as ,,e l l as for mili t_ary progra:ns ar;d i'or,=i g n aid.
While c ri ticiz ine; pre s ent practices of 12nd use in cities ;
suggested that a l ar.d b2.nk should b e c reated to help l oc.3.l
p r ovi d e· l a,nd for low and r.1oderate inco,:.e housing . :-re s a id
could. l earn a lot from Great Eri tain . He also pointed. out
no slu~s in Swe e.e n .
1·~ Reuther
con:::,u::1i tie. 3
thc:t the U . S .
th~t t her e &:-·::;
Mr . Reutl:.e r · c ont ended t hat the only way to r ed1_;_ce the cost of ouj_lcling
hou ses is to appl y modern ; advar::ced t ec:hriolo~y 2.s i.t h e.s b een e.:ppl i ed
t o such .fields as space ex-plo::.·atio::1 . Ee believes t ::-,2.t a ho·.1s-:: uorth
$16 ; 000 according to present standards could b e developed. an-:: 3old ::·o:::
$8, 000 if i ndustry i s sccn-m how to do i t b y research ins'ciG2,tcd by t h e
gove r nment or a private :::i.on - profi t cor·::;ioratio;1 .
[
11.r . Reuther was h igi1ly c ritical of t he present s~rstems of r.~s s t~ ... ,,sus :r'c.?,:~j_c,:1
in this country. rie s ai d that t he _c ar i ndustry ':iill e ver;tuaJ.ly uffe:c fn:;:.1
self- s tra.'1gul at ion o n the high,-rays . Fie thinks it i s ri diculous for a
p erscn to c arry a ton and. a h a l f of rcetal with nir,1 to wcrli: everyds.y .
Ma in que stions r a i se d by Subcorm;ii ttee :
1.
Fa1~t icii;>ati on by private inc1.11str:y in r eOuilC.ir..f- ci ti.es .
l-1r . Ri b ::.coff 2.s~ed i-!D.lter Beuther whe:::. ratio \-:culo. b e de s i :rE..ble :o:cp art ici.p:i.tion by private indus t r y 2.:.1tl go\rey_~:.!e P-t i :r1 r ebuilf~inG 2i t i er, .
Mr . ~e utr..er replied that he t hcc:::;_lt the mi:-i. irau:1 ratio s h ould oo $1 o:::
gove:rr.i~G2nt mo!1e:>' for e--..rer:/ ·~5 of private fu.r. c~.s used . ·I 1his \·.:-a s the r 2.-:.i.0
p r oposed by Davi d Rockefeller.
2.
Tee.chin;::; mi c r s.,, ts t o live in the c:i.ty .
The Cnairt,1EL'1 aske d w:io t eaches the farm p e o::;ile h ow to live i:1 c.itio s 21c.
how to e:void tur-ning hrn.l :::- ins into slu'.'1 ~2ss . He c laice d thi s i s o;t.:::::,
the gli ght of public housing in r.-.2.r!y cities . r-:r . Re uther :;aic. t nat t:--,::
w1fort-..1r).ate thi.Dg is th a"c most new city d,,•ellers leE..l'[", i'l'O",. tt:.e :;::,20::_:iL, ,. -:: .::Xnv·.-i tic l ec.. st. abou"~ l:r_;·.., to li\~8 ~n a . : . : ~~y . __. . :::. :.(~ "'.:11.::.J.:, : .::c·:22;.-- : :1:.:~ .-::)_·;~,
b e cr6aniz e d from the slutT!s to co ba c~ into the sJ.u~~s e.2:.d st':.O\·! -.9co~l.e >o-·:·
�.. -..c--- .. -
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to live £j_nd ta..~e ce.r-e of rel12..bi.litated fu""'ld nei,.;:- housing.
[
Senator Ribicofi' seid t11at ~atc :r
Oil
.,_,
i;1 vne he r~r ings
will
becomes a.
3.
Se:nator RibiGoff a·skecl ho·w i s the govern:nent org.:Lu.ized to tc..~:e caJ."~ ot
the pro1)lems of urban -~~r.-1·2 ric 2.. . t·T . Co::P,-ts_:_y.. said t!-:at t !1.e so --1e!·1:r~er!.lc 1 s
r ead::r for a ne\; Eoover Cc:.1~·;1ission . }Ie m2.de t 11e :£'oll0'".-.ring su3ge st :=-.0:1::
Y(n.ich wo"'..lld in his opinio:1 str~::Gthen the go-,.:""e:!."'nt1ent ' e. c.bi l i t~.- to de cJ_
·with tl1e urba!:t crisis:
1
b.
Group functions together as was done in t.he D:!fer1se :r2r, urt~n·:::rrt a~1.Q
Coordinate from above:: .
cutting of pro ::::rai:13 Con':! by the Burer·.u of the I,~d ge t .
would pl(lll &:c.d de·-;elop :;:>rogrc.:.1s f:c-0:1 •,·/ hi cl1 _t-ll·.-: i>::--c s!.d/:~n t cov.1. ,::
select the rcost useful . T.he a.dv~tr.\ced. I>lennj_ng futh~·t.ion of t ~:,~
execut:L-:1,~ br:~nch s hould :1ot. co6e u n d\-::j_... ~~he Eu.re au o f th e 5-J d{: :·: ~~
bec au.se it s}1ould be done o·J.t front nn1 n.\')t t e l1ii1d clc st.:d Cl.Oi..:i ~·s .
4
d.
,
}'u.r1d a.'1ead so t hat. tl1e a,;encies vron 1 t have to b es for r::or~~\ Y 2s.c h
,rea.r .
e.
Create a rnecha!1:i.st;t ( su.c~1 a s a l oc2.l coordinat o2.. ) i.Ihicll -:: sx! .Jv.-::.~u::
all the tool=· avails.Ole and fit thern t O th2 !le eds o f ~.oc2.l.
corrll--nuni t i es J:"CrtC..er than --~:"ice v e:csa .
a genius at i.:.he loc a l 1 evel
federal pro grc~c.s .
...
J,
no1.;
to
k110\\i
how -c. o t ak e ad·..- ::. .:i.1 tn~_; ,-- of
1
R.ole of l abor i.n r e\ri sio!"l cf t:1e c:Lt~--- .
Ee :::.aicl t b..: .:.t eleven · \.1..ni cr:i s c..r c ~)2r tici~)2.ti:) .~~ . .:.::-::l
cre a .J(:. e Q a cotins.il 2.::-id have do:·~e cu~:-i e.x citi nc; t l1in[;s e. s hoJ.O.i.n-~ .::! l sr_;:::-:·- 2
2uJ.d build i ng p l ayt; ::'ol:;.n ds .
Se nato:t Ke:--~11eCy wl;.:.o .·tas not present ask8d t h.~cu_-.30.. · -L~e Che.i 1·tt~2.n -..:~ ::;t:.};e; ~·
!1:r. F:-~ ut~er \-.1:1.s in favor of Co:·:~~rJ..;] :i.ty· DeveJ.o~:tn8nt Cor i:. or-2..tions c.t "Lt .~:
1
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4
l ocal level . ff:Y . Reut:1.er said he is very much in fa,,-or of theL'l . :S:e ,:e..,ts
a N2:tional Corporation to work with the total probler.! and t o 02 bc:.c~ed
u p by local corpo2:·at io!1s .
6.
National Nor.:profit Housing Corp orc.tion .
Senator Ri.oicoff said that the only person· he could think of ".,ho would
be capable of a ssemblins the r.ecess ary leve l of representation fror,
foun c.ations , u__--i.i versi ties , l abor , fin2.nce , ir::dustry and ot::ie:::- fields
to participate i:1 t he n2.tional c or pora .:.ion 1 would be t he Pre side nt .
The Senator said t!lat he h opes t he President will consider ti:-1is :_;;ropc s2.l .
0
7.
Ho':-r to avoid continua tion of c. ,,.;e lfare sta te .
J
Consres s ma..11 J ames Scheuer ( D - N. Y . ) who was present at th:; h e ari ngs
asked Mr . Reuther hm; third genera tion. wel::'Etre famil ies 8Ld :9:.·ec.ictc.':)2..e
drop - outs c 8.J.'1 "be avoi ded . l/,r . Rc1.:the r said that tne recc:r:8 2nci.at icns
made by tr..e ~ e s idec1t ' s Cow:1i. s s i er:. 0:1 .114cr..2.t i 5m s:1ould be i tr:_pl e,~,entcc,.
"'1 - e pror:-""""
S' 7 E: '·'n e - r,-,on
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-o :..- :_··.~, ince n::c i ve s 1 sucn as e arning out. s i de mon e y . He t.!1.lD:~s tna t a re c i :,ne:Tc s:-,01:.:..d.
be allowe d to do this without loosin8 his welfare ::;:,ayment so tha t the
person will aspire to living on a hit:;her pla.ri.e . ·
l., !
.
J.. ~
••
l.,~
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l., •
TI
Mr . Re uther said thc.t a.ri.other wa y to avoid a welf are state 8..."ld put
people to work is to have a s t.,_nd2.rdi zed c o::-;:;,'J.t. e:::-' z ed e;n:::,7 o·-::::cr.,. n.:- ·
At p re sent 1 Mr . Re ut h e r clair:12d 1 ttie :.:"i 1· c,y e;1 c,rei:criect s--ca--:, 2 syste:,,s 2.·'.·-=
obstacles t o the setting up o f efficie r:.t c ctT::_:iut ers ,:hich c ould m2."'.:.ch :.::-..
une,·a:;,loyed p e r son to a job withi n a r.:att er o -: r:,i nutes . i,'..r . R2u t h e r
s aid t hat the whole p e :!: son 1 his hobbi es a s we ll 2.s h i s ski lls , is n o".;
ta:~e n i nto account u..r1 c.er the p r e s e nt S'.:. at e systecns .
8.
Missin p; e l ement
in the s J.uc:-1s .
Conbressr.1an S~heuer asked what i s ti-!e missi;:r.t3 element that has no-r, ce .:::n
u sed to h e lp the cit y and ,-:heth e:..- this ele,:1e ::1t i s r.10:ce suLoidiz e c1 :10L,s :.:-.f/ '
Mr . Conwa y s a id ti1at on e r e a s on the gov e r nrr.8:1'-:, h as not h e l p e d · enou gh 5.:..
subsidi zing h ousing i s that in t he. o e:;i.nnin c; EBJ,'A was a f i n2.11e:ial i r. st~.tt·.~-:'..r.,.'.:.
macle avai l abl e fo r p riv at e i r.dust,:y . He said that the A;;,e,~cy '.-ia s n ot :;,0oj:::. ,
o r i ented.
Change in Witness s che dule :
An t hony De cha".lt , Presid ent , ::-Io.t icna.J_ Fc.rrr.e:r:s lin ic::-i '., i l l not t e stify c ::-.
Tuesday Deceuber 6 . D~-. ;-/ill iac!l Dcebele , Gre.c:.u 2.te School of D:::sie;n ,
Harvard Un i versi t y w2.s shLfted f r o:n \·lcdr:esda y t o 'I \ .:.esd.8.:f L:,s-'.:.e.s.d .
I,Ie l vin Thom1 Ne.ti o r.al I ndian Youth Council n B.s been 2.dcle d. ·co tbe li s t fo:::Monci.ay , December 12 .
M<::r:i'.)e rs pre sent:
Senator Ribie:off
Coc~ressr:!a..'1 J ames H. Scheuer ,
( D-:'TY )
�
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.
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Any textual data included in the document
Tait t. o> eee: ; ‘
Subcommittee on Executive Reorgenizetion of the
Senate Committee on Government Operations
Afternoon session: December 5, 1965
Witness: Walter P. Reuther
Subject: Problems of the Cities
Mr. Reuther was accompanied by Jack T. Conway former Devuty Director
of tne Housing and Home Finance Agency and OHO. Mr. Reuther deliveres
his statement on behalf of the six and one-half milion industrial
workers represented by the Industrial Union Department of the AFL-CIO
and the million and one-half members of the United Automobile, Aerosnace
and Agricultural Imolement Workers of Americe.
He advocated a weaving of all the elements, housing, anti-pollution
control and others, in combating urban blight. He said that these
efforts must entail the most participation possible by everyone
affected end there must be a maximum coordinetion of effors.:
He also said that the problems of cities are beyond the economic capebilivies
of the local governments. However, he Yeels that tne real drive anc thr o
must come from the local level.
Mr. Reuther proposed the ereation of a National Nonprofit zousing
Corvoration consisting of the best minds from laoor, rinance, industry,
education, etc. He prefers this sen vernmental type oF corporation
because such an organizaticn would not be entrenched in the bureaucratic
a7 ee
also thinks tnas
&
a
patterns which are to be found in the government. He +
Te type of organization would not involve in-fighting whicn is
ometimes prevalent in government organizations. In his opinion, a
peleeie organization would be much more Flexible.
Mr. Reuther, in suggesting taav the task of retuilding tie city be
done by the totel community, described the Detroit Metropolitan Citi
Development Authority, of which he is now chairman. He said the
Authority is trying to reouild the city and to qualify Detroit a2
Demonstration City. . This Authority now has the active p i
industry, retail stores, churches, civil rignts group
_He said they are trying to create a community vartnersnin.
Mr. Reuther described the three xinds of money which the eEoup Will use
to build housing as "seed money", development money and ,
He said that the seed’ money is nee
interest in the progran, but will
government if rade through grants In this regard,
pension funds could probably & 2 used only for moregag
the funds are controlled by 3 osrds which must dec
of the money is secure.
*
not be & permissible invesbiient fi
me
mw
ia)
that seed money and dsv
or most pension funds.
fo
Orne function of the nonprofit corporation, according to Ir. Reuthe
would be to stimulate and encourage the building of tone income he ie
aol
he a
by giving technical assistance to builders who would operate for a
profit. He seid thet there would necessarily be exerts available or
on call. He said that the key to the whole problem of providing Low
income housing is to demonstrate the practical capability of tiexing
pudlic planning compatible with orivete planning and buildings.
Mr. Reuther said that he is very enthusiastic about the Den
Cities Bill. However, he criticized Congress! attitude tor
approsrietion of money Tor domestic programs. He thinks + se
programs should be funded shead of tims, so that the pesextieibe wil
iad
aus
¥
know whet money is available and have the money in time to plan eh
He thinks long term committiments should be made for comestic progr
as well as for military programs and Yoreign aid.
While criticizing present practices of lend use in cities, Mr Reuther
sugzested that a lend bank should be created to help local nities
provide’ land for low and moderates income housing. He said that the U. 6.
gees learn a lot from Great Eritain. He also pointed out that there are
no slums in Sweden.
Mr. Reuther “gontended thet the only way to reduc
houses is to apply modern, advanced technolosy a
to such fields as space exolorati at, ES habiovwe
$16,000 according to present standards could be dev
$8,000 if industry is shown how to do it by researc!
government or a private non-profit corporation
cy
kK
he o
Mr. Reuther was hignly critical of the present systems of
in this country. de seid that the car industry will eventuslly suffer fren
self-strangulation on the highways. E
person to carry ea ton and a half of me
thinks it is ridiculous for a
al with him to work everydey.
Main questions raised by Subcomnittee;
1. Particivetion by private industry in rebuilding cities.
Mr. Ribicoff asked Walter Reuther what ratio would be
participation by private industry and gover in
Mr. Reutner replied th re he thought the minimum ravio sh
government money for EVERY. 35 of private funds used.
prososed by David Rock mereller.
2. Teaching migrants to live in the city.
The Chairman asked who teaches the farm peoovle now to live i
how to avoid turning housing into slum ereas
the olight of public housing in many cities
unfortunat = Shine is that most new city dwellers
abous hew to Live in a elty. Xe
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local level. Mr. Reuther said he is very much in favor of them. 3
eae ional Corporation to work with tne total problem and to be bac
p by local corporations.
6. National Nonprofit Housing Corvoretion.
- 4%
Senator Ribdicoff seid that the onl
be capable of assembling the neces
foundations, universities, labor,
to participate in the national cor
The Senator said tnat he hopes the
y level of representation from
@, industry and other
vii. would be the Pres
sident will consider tni
wn Or by
le
7. How to avoid continuetion of 6 welfare state.
Congressman James Scheuer (D - N.Y.) who was eee at the hearing
asked Mr. Reuther how third sla isto welfare families and predict
drop-outs can be avoided. Mr. Reuther sai that the recomex
made by the President's n Augomation should be
He said that welfare progrems often emphasize the wrong things and
incentives, such as earning outside money. He thinks that a recipi
be allowed to do this without loosing his welfare payment so that
person will aspire to living on a higher plane.
ae
nag mi ssicn
Mr. Reuther said that enother way to avoid a welfare state and put
people to work is to have 2 stendardized comouterized emolo:
person he could think of who would
At present, Mr. Reuther claimed, tne firty entrencnea stave =
obstacles to the setting up of efficient ccmputers which could match
unemsloyed person to a joo within ea matter of minutes. Mr. Reuther
seid that the wnole person, his hobbies as well as his skills, is now
taxen into account uncer the present State systens.
8. Missing element in the slums.
Consressman Scheuer asked what is the missing
sed to help the city end whether this element is more subsidized hou
Mr. Conway said that one reason the government has not helped -encug!
subsidizing housing is that in the beginning HHA was a financial in
element that has not reson
made available for private industry. He said tnat the Asency was not a
oriented.
Change in Witness schedule:
inthony Dechan residen National Farmers Union wi now t
Anthony Dechant, esident, Naticnal F s Union will t
Tuesday December 6. Dr. | jillian Deebele, Graduate Sch
Harvard University was shifted from Wednesday to Tuesday
Melvin Thom, Netional Indian Youth Council nas been edde
Monday, December 12.
Members present:
Senator Ribicorr
Congressman James H. Scheuer, (D-NY)
Dublin Core
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Box 22, Folder 18, Document 7
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966
-
https://ivanallen.iac.gatech.edu/mayoral-records/traditional/files/original/eddc1b9dcf1d5c0b87d8b8e212421f4a.pdf
d8f9f1fca70e0ce0611c165db2a26d2a
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I
ITK.~S O? I !"'U'2~S-~} ~Cl.)/l!~l; ~C; · }0)~ R:\ISE!D ;.\'r }f.SP:.Rif\TGS
OF RIBIC ()?:f' su:::!C:-=-~ii·:?~~- c:-; E(_ECU-:r·rv~ RSOl~GJ:.~TIZ..6..:J~'I0:·-1
December
6, 1966
( Morning )
BAYARD RUSTII'J , Exe cutive Director , A. E.i,ili_p ·· Randolph Institute
Mr . Rustin e.ttrioui:,ed r ecent :nEJ.r2ifesta tions of r a cial conflict to e.
n at ional sh or cage of jobs , educational opportu.,.'1.i ties , 2.nd housin; 1 which
c reates the fee.r tha t j\iegro advances will prove detrimental to w:C.ites .
He urged the adoption 0£' the proposed 11 freedc:;i budget" so that sc2. rcities
i n the fields of e;u.ployr.ient , ·housing , 2nd educe.tion ce.n ce elimins.ted .
An econo~ic and sociolocica l ana lysis of r a cial prejudice and e.lienation
c ompels the concl usion tha t progress can be achieved only tbrou--3;h a
L'l2.ssive n2.tional commitment to t he :i.r.iprove;rrent of urban concli tions . The
IT:.atn p oints r a j_sed in the testimon y 2.c1d the questioning period were toe
following :
1.
The Effect of tl, e Eousin3 Shortage on n~.ce Relat:i.ons
Mr . Rust:i.n stress e d t:1. e ir:1port,2.nce of ass uri ne; all inco,':le grou:9s effec"-:.i ,:e
a c ces s to tte housi n3 rr,a r~ e t . He pointed out that the existence o:f h oi.;.s i n~
scarcities l ea ds wni·t.cs to support re st rictive prac tic es 2nd f'orces r{e[,;ro-2 s
to l j_ve in substanda rd hous i n.3 .
2.
The Fa ilure of t he 1,:::1 r~-cet ?-'.e cha:1.ism
Mr, Rus tin support e d the view of Profess or G3.lbr2 ith t ha t socia l and estbe~ic
values should have prior:i.ty over fin anc i a l c ons iderat ions in urba n develop:nent .
A . FrlILIP RAJTDOLPrt , President , A. Pnilip R-2.ndolph Institute
Mr. Randolph ana lyzed the probl em of winnins politica l support for the
11 fr eedor:i bud2;et " appro::'. ch to urban prob l en s .
He decl a r e d t :C.at 2. c caJ.i t ion
of libe ral el ements could b e fanne d with s,Lfficient stre: Ds;th to ·,ii.n appro,:a l
for t he expenditure of $185 billion of r edera l fu"lds
..
over a period of ten
yea rs. Th e r:12. in poi n";:,s r ai sed in the testiJ:iony and cluri:!:lg the ques tioning
period 1-:e re the followin g :
1.
Tne ~ i'fect of Fe der2.l Hou.sin~ Polici es
Mr, Ra ncJo1:Jh asserted tte~ FeC::e1-e l prog r-2.2s have subsidized housinsi; fer
persons i n the r:i iod1 e and D.p~e r incc,,:e gr01...r;_:is to the neg;::1.. ect of t he :poor.
The fli ght fro:n the c entra l ci ty to suburbia ha s bee n nac.e p ossible l-i;yFedere.l e:·c-peudi tures , whJ.le a nuch s ~,a.ll e r c:..:ilOUci ::, has gone t o provide
t h e p oor wit:1 hi 6 }1-rise se;rese.ted bousin3: projects. ?-Ir, Rs.ndcl ph noted
tD.2..~ t!:is cc~cli.lsic~1 ~. ,~::.s se-'.: foi-t,':: i:--! tl!e :re;:01.,. ~ cf tI":2 1,.;}1ite }Ic-usr:: C::r:_~~2:r2:-.~c:
on Civil ~ights .
�,I
. . ..
2.
2
The Heed for Planned Soc~al. Ir..·,;estr,1ent
Mr. Randolph advoc a ted the adopU.on of a program of planntne: social
investment in urban develop,ent rather tha n a counter subsidy for l ow-income ,- ·
housing .
�
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.
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Any textual data included in the document
At Wea LAGS
RGANIZATIO?
December 6, 1955 (Mornings) te
BAYARD RUSTIN, Executive Director, A. Philip Randolph Institute
Mr. Rustin ettrisuted recent manifestations of racial conflict to @
national shortage of jots, educational ovoportunities, and housing, which
creates the fear that Negro advances will prove detrimental to whi
He urged the edeption of the proposed "freedou budget" so that sea
in the fields of employment, housing, and education can te eliminate ‘
An economic and sociological analysis of racial prejudice and alienation
compels the conclusion that progress can be achieved only through 4
massive national commitment to the improvement of urban conditions. The
main points raised in the testimony and the questioning period were th
following: ’ “%
*
Any
CUS
1. The Effect of the Hougins Shortage on Race Relations
Mr. Rustin stressed the importence of assuring all income grouos effective
access to the housing market. He pointed out that the existence of housings
scarcities le2sds whites to support restrictive practices and forces Negroes
to live in susstanderd housings.
‘ Wats a1 e 2 1 Market Me anism
2 The Failure of the Marke chanis
Mr. Rustin supported the view of Professor Galbraith tt
hat social and esthetic
values should have priority over financial considerations rp
an development.
A. PHILIP RANDOLPH, President, A. Pailip Randolph Institute
Mr. Randolph enalyzed the problem of winning political support for the
"freedom budget" approach to urban problems. He declared that e coalition
of liberal elements could be formed with sufficient strength to win apvoroval
for the expenditure of $185 billion of Federal funds over a period of ten
years. The main points raised in the testimony and during the questioning
pericd were the following:
1. The Hifect of Federal Housine Policies
Mr. Randolph asserted that Fecerel prozrams have subsidized housing for
persons in the middle and upper inccme Groups to the nexlect of the poor.
The ehent fron the central city to suburoia nas been made possible by
Federal expenditures, While @ much smaller emounts nas sone to provide
the poor with high-rise s earegesed housing vrojects. ir. Randolph noted
tnet tris conclusion was set Torthn in the rerorc of the White House Contersnce
on Civil Riz
t
fh
2. The Need for Planned Social Investment -
Mr. Randolph edvocated the adoption of a program of planning social
investment in urban development rather than a counter subsidy for low-income ”
housing.
a
Dublin Core
The Dublin Core metadata element set is common to all Omeka records, including items, files, and collections. For more information see, http://dublincore.org/documents/dces/.
Title
A name given to the resource
Box 22, Folder 18, Document 8
Box 22
Box 22 Folder 18
Folder topic: Task Force on Cities | 1966