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Urban Policy (4)
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Urban Policy (4)
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The original documents are located in Box 39, folder "Urban Policy (4)" of the James M.
Cannon Files at the Gerald R. Ford Presidential Library.
Copyright Notice
The copyright law of the United States (Title 17, United States Code) governs the making of
photocopies or other reproductions of copyrighted material. Gerald Ford donated to the United
States of America his copyrights in all of his unpublished writings in National Archives collections.
Works prepared by U.S. Government employees as part of their official duties are in the public
domain. The copyrights to materials written by other individuals or organizations are presumed to
remain with them. If you think any of the information displayed in the PDF is subject to a valid
copyright claim, please contact the Gerald R. Ford Presidential Library.
Digitized from Box 39 of the James M. Cannon Files at the Gerald R. Ford Presidential Library
THE WHITE HOUSE
WASHINGTON
May 4, 1976
MEMORANDUM FOR:
JIM CANNON
ART QUERN
STEVE McCONAHEY
ART FLETCHER
PAT DELANEY
ALLEN MOORE
FROM:
LYNN Urban MAY Policy a
SUBJECT:
Attached is a draft paper reflecting HUD's response to
our urban policy initiative. I though it would be
useful to us to review it to assess the direction of
the thinking in the Department on the issue.
I expect the final version of the paper and a meeting
with Secretary Hills and her staff to crystallize within
ten days to two weeks.
1) Act:
2) hym:
HUD's usponse is disapporting.
attachment
misponsime to the guestions,
In general it is
bureaucrator in approach
vague, writey and
And fundamental grestoring
FORD is LIBRARY OFRALD
urban problems an our where
about The posons for
hits Diruss
the
March 19, 1976
MEMORANDUM FOR CARLA HILLS
FROM:
LYNN MAY 151
SUBJECT:
Urban Policy
Jim Cannon has requested the Domestic Council to examine a
number of related issues affecting the Administration's
urban policy. He is aware that you have taken a major
interest in this subject and have discussed it at length
with other Cabinet members.
In light of your concern and responsibilities for community
development policy, Jim believes it would be useful for you
and key members of your staff, like Dave Meeker and Charles
Orlebeke, to meet with Domestic Council staff members to
discuss issues.
Topics for discussion in this meeting would likely revolve
around the following questions:
1.
What position should the Administration take in
regard to the problems of the cities?
2.
What process do we have for dealing with specific
calls for help from Mayors of cities in fiscal
trouble?
3. How can we best approach the development of a
long-term policy toward the nation's cities?
Some suggested initial steps for resolving these questions
involve the following:
1.
Assessing a survey of exactly which cities are, or
soon will be, in trouble.
2.
Establishing and maintaining a regular (not crisis
oriented) channel of communication with urban
centers).
3.
Development of a "tool" or "yardstick" to assist
in measuring the fiscal conditions of different
cities.
GERALD FORD LIBRARY
-2-
4.
Review Federal programs specifically designed to
help the cities.
We realize, of course, that HUD has a long history of involve-
ment in many of these subjects. What we would like to
obtain from our initial meeting is your assessment of the
issues and of possible options the Administration might
adopt to resolve them, particularly in the realm of Federal,
State and local coordination. We would also like a general
description of the state of the analytical art for assessing
urban fiscal problems.
DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT
U.S. DEPARTMENT * UNERAN OF HOUSING * AND
EXECUTIVE ASSISTANT TO THE SECRETARY
May 3, 1976
To :
Lynn May, Domestic Council
From: William C. Kelly, Jr.
wek
As I promised on Friday, attached is a
draft paper on urban policy. Because it
is a draft, I would appreciate your not
circulating it outside the Domestic Council.
Dave Meeker will be in touch with you next
week.
CC:
Carla A. Hills
John B. Rhinelander
David O. Meeker
DRAFT
AN URBAN POLICY FOR CENTRAL CITIES
I.
The Request
The Domestic Council in April requested a meeting to discuss urban
policy and city problems.
II. The Problem
1.
The Department's real and perceived urban development role is
weaker than envisioned in the statutory base.
At present, major urban responsibilities are scattered in
piecemeal fashion throughout the Executive Branch. With a
trend beginning in 1968, Presidential and Congressional actions
have greatly strengthened the urban role of other Federal
agencies concerning the central cities.
That trend continues, with large city mayors, state and
local officials, national public interest groups and key
Congressional leaders increasingly looking to the urban
development responsibilities assigned
2
elsewhere. The present attempt by the House Public Works Committee
to assign a broad urban economic development role to the Department of
Commerce's Economic Development Administration (HR 9398) is a prime
example. This type of action stands to undercut the Department and,
if successful, would be a step backward toward program proliferation
and fragmentation. I have discussed with Sol Mosher a strategy to link
this bill to the Community Development Block Grant Program, and my staff
is working on specific suggestions. General options would include a
Presidential veto or a re-working of the proposal to link Federal urban
development funds, with the Department administering the program in
conjunction with Commerce, through a combined Economic-Community
Development Application.
Given the limited discretionary nature of the Community Development
Block Grant Program and the funding limitations of the Comprehensive
Planning Program, the Department is perceived by its constituents as
having lost its urban development primacy.
Departmental initiatives to improve Federal interagency and intergovern-
mental coordination through agreements among agencies sharing the same
constituency are not apparent, since they are not focused on specific
urban development objectives such as the leveling off and re-alignment
of functions in non-viable, large central cities.
Despite these interagency agreements and the Department's strong past
record in pioneering the Integrated Grant Administration program leading
to Joint Funding Simplification Act and other coordination improvements,
state and local officials and public interest groups are increasingly
turning to other Federal agencies. A current effort (S. 3075) to vest
broader areawide coordination and areawide growth management responsi-
FORD
bilities in the Office of Management and Budget serves as an example.
GERALD
3
Again, this type of action undercuts the Department's urban development
role.
Recent Congressional hearings focused heavily on the Department's
housing role and research agenda. No new major urban development or
growth development challenges were raised. This tends to further weaken
the Department's real and perceived role in these vital areas.
On the assumption that a strong Department urban development role is of
real benefit to the nation and the administration, major initiatives
become necessary to regain lost ground and capture additional strength.
Necessarily, these initiatives must be undertaken promptly, but need not
necessarily involve large amounts of funding. Needed funds could be
provided out of existing or anticipated resources through a shifting of
priorities. For example, "701" funding, which may be increased by the
Congress, could be applied for that purpose.
I. The Opportunity
The Department could seek to regain its primacy as the communications focal point
with state and local governments.
The Department is the most logical Federal agency to provide both the
structure and the process in responding to the Domestic Council's stated
concern for "establishing and maintaining a regular channel for communi-
cation with urban centers".
Ours is the only agency with a broad statutory/executive order mandate
to promote, facilitate and strengthen interagency and intergovernmental
relations supportive of urban development through the statutory authority
of Director of Urban Program Coordination. And the Department is the
only agency, through interagency agreements and "701" funds, now pro-
viding the common Federal linchpin with state and local government.
FORD is LIBRARY DERALD
4
Policy Development and Research and CPD "701" already are major focal
points for research and innovative projects dealing with urban develop-
ment, including city fiscal issues and growth and development issues.
The Department also serves as a major focal point for the general
national, state and local public interest groups and specialized
interest groups, such as the Council of State Community Affairs Agencies,
on matters related to urban development.
The Department could easily initiate a series of general and specific
efforts to improve and strengthen the administration's communications
ties with state and local governments. These efforts could focus upon
regular communications and respond-to-crisis situations. A new inter-
governmental communications system that builds upon the Federal Regional
Councils could be developed with the Department as the lead agency.
Special attention could be given to the different types of fiscal
problems.
The Department could seek to firmly establish its primacy for dealing
with balanced national growth and development, including various forms
of large-scale urban development.
It is impossible to effectively deal with the central city fiscal issues
outside the framework of growth and development affecting urban counties,
metropolitan regions and national economic regions. For example, hard
data supports the contention that when central cities constitute a major
proportion of the metropolitan regions, such as Jacksonville with 91%,
they are likely to be more viable than cities which constitute a small
proportion, as in the case of San Francisco with 40%.
The short- and long-term success of the Department's housing, community
development, urban design and other missions will hinge on how growth
ALD 1817 ALD R. FORD
5
and development balance is handled by cities, counties and states.
And the success of the Federal government in coping with present and
projected growth and development -- much of which will escalate the
economic base and fiscal crisis now facing large central cities with a
tradition of providing broad, high-level and high-cost social services -
will hinge on how cities, counties and states handle basic changes in
the economic-community functions of the central cities. The Minnesota
Metropolitan Fiscal Disparity Act is an example of an effort to deal with
the central city revenue/expenditure imbalance within the context of
areawide growth and development.
New communities, planned unit development, larger-than-usual developments,
land-use management and other forms of economic/community development
drawing support from the Department either contribute to central city
economic/community gains, such as in Minneapolis and Houston, or losses,
as in the case of Washington, D.C. It is impossible to ignore the impact
of the Department and other Federal policies and programs on central
cities.
The Department could assume a new leadership role in helping to shape
differential Federal policies and programs within the context of balanced
National Growth and Development to cope with different types of central
cities such as housekeeping-physical orientation or full public delivery-
social orientation in different National Economic Regions, states and
metropolitan regions. Pin-pointed 'efforts could focus on large central
cities without a viable economic base or a grossly distorted base linked
to public-private sector service employment. Broader efforts could focus
on central cities with a viable economic base that can be conserved,
expanded and balanced through public economic-community development
actions and reasonable policies backed by sound fiscal management.
FORD is LIBRARY 078839
6
[V. The Department could seek to fill the gap that exists for dealing with
National Economic Regions and Interstate Growth and Development Corridors
Today, the Appalachian Regional Commission, the Department of Commerce
and the Water Resources Commission are the major focal points for
Federal attempts to cope with certain dimensions of National Regions and
Interstate Corridors.
Congress remains the dominant force in support of "National Regionalism".
Substantive amendments to the Public Works and Economic Development Act
and the Appalachian Regional Commission place broader growth and develop-
ment responsibilities on Title V Regional Action Commissions and the
Appalachian Regional Commission. The 1975 amendments also make the
Governors directly accountable for planning and implementation.
Despite funding reductions, it appears that the concept of "National
Regionalism" is gaining ground. Broad recognition is being given to the
impact that public-private investments have had, and are having, on states
and large central cities in the Northeast and Midwest. Basic economic-
population redistributions are taking place which contribute to growth and
development imbalances.
New initiatives are being taken by public-private leaders at the state
and local levels to understand and cope with the phenomenon of "National
Regionalism" and its consequences on the provision and financing of
public services in "loser", states, metropolitan regions, urban counties
and large central cities.
The Academy for Contemporary Problems has prepared an unsolicited urban
development leadership proposal seeking Department "701" and Economic
Development Administration planning assistance funding to help launch a
new Industrial Midwest Development Institute to deal with the pro-
FORD is LIBRARY 9ERALD
found economic and demographic shifts now altering the fiscal and social
conditions of many of the older industrial cities
" Once established,
7
the Institute would be governed by a board made up of state, federal
and private leaders, with federal officials drawn from the appropriate
Federal Regional Councils. A similar effort is being developed by a
northeast university consortia to focus on that Region's difficulties
and growing imbalances, The Rockly Mountain Federation of States is
examining the desirability of initiating a similar effort through the
Federation of a new eleven-state vehicle.
The Department is the most logical Federal agency to respond to, and
actively encourage, these types of initiatives. Positive response
would strengthen the Department's capability to help answer the Domestic
Council's question: ."How can we best approach the development of a long-
term policy toward the nation's cities?" Furthermore, a positive re-
sponse would strengthen the administration's position in the midwest and
northeast by demonstrating concern over imbalances. Concern backed by
pin-pointed efforts can help counter charges that the administration has
turned its back on states and central cities in the so-called "Steel and
Retail Belts" in favor of the "Sun Belt".
The Department could easily initiate a series of responsive efforts.
A major Department link with the Academy for Contemporary Problems on
this issue would help strengthen communication and intergovernmental
relations with state and local governments through the Academy's
sponsors - the major national public interest groups. Similar links
could be developed in the Northeast and Mountain Plains Regions.
Research data from a recent fiscal study indicates that an 11% increase
in private service industry employment is required to generate the
public revenue lost from one manufacturing job and a 61% increase in
BERALD FORD VERARY
public sector service employment is required to offset such a loss. The
long-term impact on large central cities in turn will impact on state
8
and Federal growth and development policies. Obviously, strategies
such as public employment programs have both long- and short-term
disadvantages.
V. The Department Could Seek to Fill the Gap that Exists for Dealing with
Interstate Metropolitan Regions and Less than National Interstate
Growth and Development Corridors
Today, the Department and the Economic Development Administration are the
major focals point for certain economic-community development aspects
of Metropolitan Regions involving two or more states and interstate
corridors cutting through and extending beyond some of these Regions
and other contiguous Regions and substate districts within each state
such as the Inter- and Intrastate Cincinnati Growth and Development
Corridor.
The Department of Transportation, the Environmental Protection Agency
and other Federal agencies also have a major impact on growth and
development within these Regions and corridors.
As with National Economic Regions and National Interstate Corridors
as in the Northeast which cut through and extend beyond two or more
entire states, the growing economic-community imbalances associated
with Interstate Metropolitan Regions and interstate corridors are
having a significant impact on the viability of larger central cities.
To date, most interstate compact commissions, regional councils of
governments and similar vehicles receiving CPD "701" funds have not
focused work elements on balanced growth and development and on the
short- and long-term impact regional growth and development on the
economic-community functions of large central cities. Few of these
vehicles have formally recognized the importance of dealing with
interstate corridors.
DERALD FORD LIBRARY
9
New initiatives by a few states recognize the importance of interstate
growth and development (such as Ohio-Indiana-Kentucky). A few interstate
vehicles, like Siouxland Interstate Metropolitan Planning Council have
also taken some initiatives. The Southeast Federal Regional Council's
leading effort to understand and deal with interstate and intrastate
"border straddler" problems having a negative impact on programs and
contiguous regional agencies has not moved into Phase II due to other
priorities.
The Department is the most logical Federal agency to respond to, and
actively encourage, new initiatives aimed at understanding and adjusting
to interstate growth and development events. Pin-pointed efforts could
focus on "troubled" Regions such as the New York Metropolitan Region and
Regions trying to avoid growth and development imbalances such as the
Iowa-Nebraska-South Dakota Interstate Region, centered in Sioux City, Iowa.
Positive response would strengthen the Department's and the Administration's
position in dealing with central city issues and the problem of working
out coordinated actions between and among states and between and among
Federal Regional Councils with overlapping jurisdictional responsibilities,
as in Sioux City.
VI. The Department Could Seek to Strengthen its Relationships with Regional
Councils and Similar Vehicles with Service Areas Encompassing Large
Central Cities
The Department has always been the economic-community source of Federal
leadership calling for the solution of many fundamental problems through
state and local efforts keyed to the metropolitan region encompassing
the large central city.
The Metropolitan Council of Minneapolis and the Denver Regional
Council of Governments offer examples of how councils can help large
central cities retain their economic-community vitality. The
FORD : LIBRARY GERALD
10
Metropolitan Council's accomplishments includ- critical support-building
for the Metropolitan Fiscal Disparity Act. The Denver Council was the
catalyst behind the effort to create a Regional Service Authority to
link planning with implementation. Narrowly defeated, this effort may
be advanced again.
The Houston-Galveston Area Council of Governments is an illustration of
how councils can improve communications between Federal-state-local
officials and public-private leaders. The Department successfully
carried out problem-solving forums with this and other councils in 1972.
The Department has also helped finance "Forums on Federalism" sponsored
by various local organizations in conjunction with councils and other
"701" recipients. Several Forums focused specifically on large central
city economic-fiscal problems, as was the case in St. Louis.
The Department could easily and profitably initiate a series of new
efforts designed to attack large central city problems through communi-
cations and open dialogue using regional councils and similar vehicles.
If carefully implemented these positive efforts could appropriately turn
the first level of central city problem solving back toward the regions
and states. This direction is totally consistent with New Federalism and
could improve the administration's position with regard to city issues,
without commiting the administration to massive new Federal interdictions
and bigger Federal government. Given the political makeup of regional
councils and similar vehicles, the administration's overall positions
will find support and the administration can effectively counter many of
the charges that it is not sensitive or responsive to central city
issues.
FORD & LIBRARY GERALD
11
A series of regional conferences pin-pointed on "troubled" or "endangered"
central cities such as Detroit, St. Louis and Atlanta could be care-
fully staged, with regional councils serving as the delivery vehicles.
Each conference could be handled with Department staff doing much of
the work funded by a small "701" set-aside. Specific topics could
include full state assumption of selected governmental functions such
as health and education and the probable impact on central city,
suburban, state and even Federal public finance.
The Department could initiate several experimental projects to see if
the successful South Texas Cultural Basin Commission approach can be
transferred to certain "troubled" metropolitan regions like New York
and St. Louis. This approach brings state, including the governor;
Federal, through the Federal Regional Council; local officials, in-
cluding chairmen of regional councils of government; and private leaders
together as Commission members to focus on short- and long-term actions
to deal with systemic economic-community problems. The future of each
city is viewed within a broader State Economic Region encompassing five
separate substate districts served by five regional councils. If
transferrable, this model could help state-local and Federal governments
move forward toward a long-term policy for dealing with central city
issues.
Strong positive response would strengthen the Department and administration's
position on dealing with central city issues and help meet the three
objectives of concern to the Domestic Council. This approach could
give the administration a positive position that shows concern and
understanding without unnecessary `political and fiscal commitments and
which promise future solutions without unnecessary delivery. It could
BRALD BIT R. FORD
12
yield a major piece of a new process for dealing with calls for help
from Mayors by turning first-level problem-solving back from the Federal
government to regions and states. Furthermore, it could contribute to
the development of a long term policy toward the future of central cities
with and without viable economic bases.
VII. The Department Could Seek to Strengthen the Role of States in Dealing with
Balanced Growth and Development Issues Impacting Upon Large Central
Cities by using these methods:
Encourage states to undertake new applied research and problem-solving
efforts keyed on the negative-positive aspects of growth and development
within National Economic Regions, National Interstate Corridors, Interstate
Metropolitan Regions, Interstate Corridors and Metropolitan Regions. Pin-
pointed focus could be placed on large central city issues.
Work closely with the Council of State Community Affairs Agencies and
similar organizations to strengthen the capability and capacity of
different states for dealing with the economic-community problems of
different types of central cities. Particular focus could be on new
state-Federal program-funding links with the Community Development
Block Grant Program through greater use of the Joint Funding Simplifi-
cation Act and other mechanisms.
Initiate a series of efforts to get states more involved with central
cities to prevent new economic-fiscal crises and with urban counties as
true forms of areawide government for dealing with growth and development,
for example, through the Community Development Block Grant Program and
other Department programs focused on large-scale development and financing
FORD
of selective public services.
LIORARY
Respond to new and current state initiatives. Concerning balanced growth
and development, the National Governor's Conference offered a 1974-1975
proposal to Congress calling for a new system of multi-state and interstate
13
vehicles to deal with growth and development issues. New emphasis on
the State role would strengthen the Department's capability to fully
execute Federal interagency agreements and stimulate new uses of Joint
Funding focused on a few targeted central cities. This approach would
also strengthen the Administration's position in showing concern for
urban counties and aging suburban communities, as well as for large
central cities.
VIII. The Department Could Seek to Increase the Community Development Block Grant
Program's Impact on Solving Large Central City Problems
The Block Grant Program is largely keyed to meeting the physical needs
of cities. Detroit Mayor Coleman Young recently complained before the
Joint Economic Committee that, "Community development won't help me run
a police department or a sanitation department." To a great extent this
statement is true. A reassumption of Department leadership in support
of Joint Funding could help bring the funding priorities of other Federal
agencies more into line with city needs and match Federal social service-
human resources programs up with the Block Grant Program. This approach
would greatly strengthen the Department and the administration's
immediate ability to deal with calls for help from Mayors.
The Department could: Seek to gain the responsibility for administering
Joint Funding Projects through lead agency designation or formal transfer.
Engage in new initiatives with the Departments of Commerce, Labor and
H.E.W. to develop a new package of services and funds targeted on
"troubled" and "endangered" central cities. It is almost impossible
to cope with the basic changes that have occured, and still are
occurring, in the economic-community functions of large central cities
without these Departments cooperating in a consistent and mutually-
reinforcing set of policies.
FORD & LIBRARY GERALD
14
Provide further leadership and advancing proposals calling for Federal
financial formulae, governing statutes and regulations to give greater
weight to poverty, unemployment and loss of economic base factors. A
new twist would be to give weight to the increase of central city depen-
dency on public-private service industry jobs. This would be a realistic
and dramatic way to Federally recognize basic changes in the economic-
community functions of large central cities.
IX. The Department Could Strengthen its Research Role and Seek to Become the
Primary Federal Focal Point for Applied Research Targeted on Central City
Issues
Building upon current and on-going efforts, the Department could
immediately pull together the Federal and non-Federal research that
exists on central city problems. Once catalogued and analyzed, the
Department could issue self-help documents to guide local and state
officials understanding and dealing with central city issues.
Apply research findings scattered throughout the Federal government and
the nation to help improve communications on large central-city issues
within the Federal government, between governmental levels and between
public and private leaders.
Use proven research methods for determining immediate and impending fiscal
crises and largely irreversible basic changes in economic-community
functions to help states and local officials initiate self-help actions.
Put into practice proven public economic-community adjustment and
realignment methods to help state and local officials and private
leaders develop realistic self-help and short- and long-range action
programs to level down certain public services, transfer the responsi-
bility for certain functions to higher governmental levels and shift
the cost of certain services to users through public user charges or
private delivery.
GEBRED FORD (TBRAR)
15
Initiate a series of efforts to focus attention on hard research data
and findings dealing with the cause-effect of central city fiscal problems.
Assuming primacy for Federally sponsored applied central city solutions,
the Department could strengthen its working relationships with the Advisory
Commission on Intergovernmental Relations, the National Science Founda-
tion and other agencies funding both theoretical and applied research
on central city economic-fiscal and service delivery issues. Furthermore,
the Department could assume primacy for serving as the Federal clearinghouse
to ensure that all relevant research on central city issues is made known
to potential users and that it is distilled into usable form for appli-
cation through Federal and non-Federal sponsored projects.
Convene a non-political conference of leading public fiscal experts to
discuss the state of the analytical art and directions the Federal
government should consider taking to improve research methods and data.
Serve as the convenor to-bring together public-private experts to
share research findings and discuss ways to deal with specific types of
public finance problems such as retirement and pension funding, municipal
credit, collective/bargaining, wage/fringe roll backs or roll outs to
higher governmental levels or suburban communities, and the negative-
positive fiscal impact of state-Federal assumptions and "piggy-back"
commuter-sales type taxes. Additional research is needed on the inelasticity
of large central city tax bases and how equity problems might be addressed
through income transfer approaches., Competitive research is also needed
on service employee productivity in the public-private sectors.
Immediately initiate situational analysis targeted on selective central
cities so that differential Federal strategies and pin-pointed selective
FORD
Federal interdiction actions can be proposed for dealing with various
LIBRARY
types of large central cities in different National Economic Regions,
states and metropolitan regions.
Longer range balanced national growth and development research projects
could be initiated to determine the possible impact that basic economic-
population shifts in favor of National Economic Regions and states, such
as Texas, without a tradition of providing broad, high level and high-
cost social services-human resources programs largely financed out of
state-local revenues might have on a levelling down of services-programs
in "loser" National Economic Regions and states like Northeast-New York,
Midwest-Michigan and on a levelling down or up of Federal funding support.
Positive response would strengthen the Department and show the adminis-
tration's willingness to remain open-minded to long-term solutions.
Importantly, positive response would communicate to most citizens, the vast
majority of public officials and private leaders that the situation is
very complex, was long developing and will require a long term "work-
out". Broadcast communication would help the Administration counter
short term, high-cost, politically expedient proposals calling for more
public service jobs and so forth. Many Presidential contenders are
attracting excellent press and may be gaining independent voter support
because the Administration's positions are not reaching broad groups of
taxpayers in terms they understand.
X. Further Action
Members of the CPD staff are now preparing a more detailed response to
the points raised in the Council's memorandum. I would like to submit
a strategy paper, with options, and a proposed agenda for discussion
upon my return the week of May 10. This paper will identify actions
that the Department can take with or through the Council, and steps that
can be taken under existing assignments.
FORD is LIBRARY 03RALD
Glenda Allen-no answer
Sally Blue-run away
Robert Brown-wants to quit
Jess Brown-had court hearing
today
CITIES IN
Richard Casey-unknown
Keith Cline-truant, mother
said he left for school.
Sheila Davis-sink overflow.
Had to wait for plumber.
Tom Duffey-out painting house
all week-parents' permission.
SCHOOL
Susie Gerholt-pregnancy
illness.
Janice Grantham-missed ride
David Harris-death in family
(grandfather)
Nancy Hodap-ride left with-
out her-no money for bus.
Sandra Holland-glasses
broken-mother called.
Andrew Hunter-called
mother; thought Andrew
was in school.
Mark Gasser-Job Corps.
Sandy Johnson-false labor
pains.
Andrew Jones-overslept till 12.
Paulette Jones-fell down the
steps.
Leroy Kennard-went to
Florida; sister had baby.
Vic Klinker-refuses to come
to school; going to quit in a
couple of weeks.
Dan Lauhorn-had appt. at
health clinic.
Thomas Mason-in juvenile
court.
The names of these youth are
not real. The reasons they
stayed home from school are.
This list represents a collage of
human need which floods our
schools each day. Teachers have
neither the time, resources and
in many cases the skills, to
solve these problems.
Educators and supportive
staff (social workers, probation
officers, youth workers, drug
workers, and other related
disciplines) must work together
in meaningful concert. There is
no other plausible road to
quality urban education.
Cities in School represents a
national model that demon-
strates a new way to meet the
BERALD FORD ELERA
comprehensive needs of youth.
THE NEED
Most teenagers entering 59/76 high
THE PLAN
FAMILY UNIT
THE RESULTS
Urban Policy
Instead of bringing the teenagers to the
40 students
If the excitement and commitment of
schools would have trouble reading this
city services
bring the city services to
1 teacher
the staff involved in the model projects
sentence. Every year, for several years,
the teenagers. Bring the city to school.
were the only yardstick
the
Cities
in
the reading brehension level in urban
Bring trained professionals from health,
STAFF
School plan is a great success.
schdols as getting lower and lower
welfare, probation, housing and parks &
1 family facilitator (to make things work)
That's a good sign. But it will be the
recause most urban high school teen-
recreation into the school system. Make
1 program coordinator
students who will be the measure of the
agers have trouble.
those people part of the educational pro-
(vocational/recreation)
program.
They may be hungry, or beat up or
cess. Free the teachers for teaching.
1 social service person
Through a grant from the Lilly En-
anxious or pregnant suffering from
The point is to make more effective use
(welfare/social worker/probation)
dowment, the University of St. Louis is
some terrible combination of fears and
of the money, people and skills already
1 supportive educator (for remediation)
now conducting a thorough evaluation
psychic or whatever. But chances
provided by city budgets.
Make sure that there is a race and sex
of the program in Indianapolis
costs,
are, they have prouble.
Give the teenager somebody to trust
distribution so every student has a variety
reading levels, reduced numbers on pro-
And students in trouble cause trouble.
and relate to; who can meet his/her
of staff to relate to.
bation, etc.
Teachers, instead of teaching, keep
pressing needs.
Provide intensive tutoring during and
The Cities in School concept does not
order." The toughest oblem in urban
Give urban high schools around the
after class.
guarantee miraculous improvement. It is
education is not the quality of teaching.
country an easily copied prototype that
Visit students' homes to gain the sup-
an attempt to coordinate the delivery of
It is the social, economic, and personal
works!
port of parents.
youth services around the youth through
problems of the students
foblems
Here's an outline of the model.
Organize field trips. Provide remedial
a school setting.
that prevent the students from learning
Divide the students into a family unit.
reading programs and intensive math
Cities in School is community resources
and problems that the schools and
There are many social agencies in
classes. Begin to use community resources.
working in concert with educational in-
the teachers cannot help.
the city often scattered all over
Show the students that somebody cares.
stitutions. It is a real hope that the lives
If we could human problems,
town. The child has to leave home
or school to seek service from each
Solve the personal problems to solve the
of our urban youth can be serviced; that
the teachers could solve the learning
agency separately. Much time is
learning problems.
their educational, cultural and conceptual
problems.
wasted traveling, and looking for
Most important
raise reading and
deficiencies can be helped
that
the
Cities are rich with ssionals, and
each individual child.
math levels. Help students become re-
youth who are the future of urban com-
budgets and programs for 15-19-year-
The teenager who needs help
has to seek out each one sepa-
sponsible creative citizens that contribute
munities will be educated, responsible,
olds. Well-staffed departments of hous-
rately. And each department has to
to society instead of welfare and/or
contributing citizens.
ing, social work, welfare, health, proba-
find each child separately.
It's a classic management prob-
criminal burdens of society.
tion, and parks & recreation exist now.
lem
how do you team up the ex-
But they are rarely coordinated with each
isting resources of the city, to make
other.
the education of its future citizens
possible?
It's a classic management prob-
lem
how to you team up the ex-
isting resources of the city, to make
the education of its future citizens
possible?
One answer is being developed in Indianapolis, Atlanta and New York.
If the social agencies sent
personnel to the schools
they'd discover the people
they need to see, and help.
Students would have addi-
tional adults (to relate to, to
look up to) who cared about
them and teachers would be
free to teach.
Cannon. fyi
Die
THE WHITE HOUSE
WASHINGTON
June 28, 1976
MEMORANDUM FOR:
JACK MARSH
FROM:
JIM CANNON
For
SUBJECT:
Carter Position on Urban Problems
It is our understanding that the Mayors meeting
in Milwaukee expect Jimmy Carter on Tuesday,
June 29, to endorse an "urban development bank"
concept to provide major Federal assistance (possibly
$1 billion) for cities in a way that is designed to
stimulate investment by the private sector.
Few details are expected, but the Democratic Mayors
do anticipate that Carter will indicate his position
by endorsing the attached resolution.
Attachment
FORD & LIBRARY GERALD
vilot Program for Neighborhood
Mayor John H. Poelker
Preservation and Rehabilitation
St. Louis
Mayor Steve Cappiello
Hoboken
WHEREAS, the preservation of existing neighborhoods and the
rehabilitation of its housing stock, existing commercial facilities and
basic infrastructure is part and parcel to any effort to revitalize our
nation's central cities and a national objective of highest urgency and
concern; and
WHEREAS, the achievement of such a vast undertaking requires the
execution of a complex process which includes a strong, direct federal-
local relationship, a partnership of public and private sector and a
city's understanding of both the community development strategy as well
as the interacting of economic and social factors enhancing residents'
confidence, of which neither the programmatic tools nor monetary resource
presently exist; and
WHEREAS, the United States Conference of Mayors adopted policy at
the 43rd Annual Conference in Boston calling upon the Administration to
create a substantial pilot program for neighborhood regeneration in at
least 100 cities; and
WHEREAS, the Administration has yet to pursue such. an activity and
the forthcoming congressional debate on the reauthorization of the Housin
Community Development Act of 1974 provides an excellent forum for further
presentation, discussion and adoption,
NOW, THEREFORE, BE IT RESOLVED that the U. S. Conference of Mayors
reaffirms and strengthens the previously adopted policy urging both the
Administration and Congress to actively pursue the development and
creation of a new and substantial $1 billion demonstration/pilot program
to foster neighborhood regeneration and rehabilitation; and
BE IT FURTHER RESOLVED that federal and all program resources be
directly linked in a systematic way to the community development block
grant multi-year planning and implementation activities including the
housing assistance plans; and
-
BE IT FURTHER RESOLVED that, as an intricate part of this program,
Congress and the Administration should examine and devise new and inno-
vative federal financing techniques similar to such concepts as the
National Urban Development Bank or the National Cities Corporation with
the objective of stimulating and providing incentives for the involvement
of the private sector.
LISAARY GERALD FORD
- 85 -
July 13,
Urban 1970 86 Policy
TO:
The Vice President
FROM:
William J. Ronan
SUBJECT: INDUSTRIAL DEVELOPMENT AS AN AID 10 URBAN BLIGHT AND
CHRONIC UNITELOYMENT
Background
The major older cities of the nation -- New York,
Philadelphia, Boston, Detroit, Cleveland, Newark, St. Louis, etc. --
suffer from deterioration of their ratable values, outward migration
of industry -- manufacturing, warehousing and distribution
particularly -- and high uneuployment end large welfare costs.
Any long term aolution that will save these cities requires
their economic revitalization -- and this means a sizeable portion of
industry and jobs must be attracted back to the cities.
One significant element in this effort 1s Federal policy.
Federal policy heretofore has encouraged urban decentralization --
FHA and Veterans housing, the Federal Highway Program, Federal
electrification programs, etc. If the cities are to be reinvigorated
Federal policy-must encourage it. This will take several major
policy changes:
1. Federal setting of maximum welfare as well as minimm welfare
standards.
2. Federal housing programs to reattract the middle class to
the cities,
3. Federal transportation policies to encourage public
transportation In cities.
4. Federal energy policies to make energy costs in cities more
competitive.
0
5. Federal assistance for industrial development and redevelopment
in cities.
Industrial Development
1. The large cities in trouble willonot come out of their
difficulties unless they can attract industry and employment.
GEBALD FORD LIBRARA
2. These cities have vast areas of slums, depopulated "bombed-
out" sections, which are producing little revenue and
constitute not only "eyesores" but are areas of degradation,
crime and delinquency, and these "rotten areas" have spread to
to adjacent areas. The properties in some of these areas
have already been acquired by municipalities through tax
delinquencies.
3. A Federal program to help acquisition of certain of these
areas for industrial redevelopment would be a major assist
to them. Many of these areas could be made available for
industrial usage, if the land costs are written down, if they
are cleared, and if the basics of utilities and transportation
are provided.
Financing: $2 Billion in Federal Funds
Because of the present stringencies on cities, Federal assistance
would be a desirable bolt (?) as an incentive and for actual
progression of such a program.
Federal assistance should take two, possibly three, forms:
1. Federal funds to assist state and local government in
acquiring necessary additional land, clearing sites, and
in writing down land values. Municipalities would be
allowed to use land they now own to match Federal funds.
2. Modification of the so-called "Ribicoff Amendment" that
currently limits the amount of tax-exempt revenue bond
financing for industrial development. This modification
should be designed to permit larger amounts of tax-exempt
industrial revenue financing for urban areas that have had
consistently high unemployment.
3. Consideration should be given in connection with these
areas for industrial development in communities with
consistently high unemployment rates above certain levels
to:
a. the additional stimulus of a modification of the
corporate income tax, and
b. a five-year tax write-off for capital outlays.
The matching financial assistance and the liberalized "Ribicoff"
and the possible modification of the corporate tax incentives would
be limited to:
1. Urban areas where there has been a rate of unemployment of
more than 9% for at least two years.
2. Urban areas that have lost manufacturing, assemblying,
packaging or warehousing jobs aggregating more than 27%
of their employment in such fields.
3. Urban areas where states have established public benefit
corporations for industrial development that:
GERALD FORD VIBRARY
- 3 -
a. Have power to issue revenue bonds, acquire and
develop properties.
b. Have a continuing life and consistency of
management.
C. Have power to lease and sell by mortgage such
industrial properties.
4. And would be limited to urban areas wherein such
developments are given real property tax protections.
Investment
A federal investment of $2 billion to spur the growth of private
sector employment in these urban areas of consistently high
unemployment will be more than compensated for in terms of
reduced welfare, crime and unemployment costs, and will
be returned to the Federal treasury in the form of additional
tax revenues.
Such a Presidential initiative might well be a turning point
in the long steady deterioration of our urban centers and the
start of their revitalization.
The basic result would have a lasting and invigorating
effect on our entire economy which will benefit all citizens.
Singapore's experience is an interesting prototype:
In 1964, Singapore, with a population of three million
Chinese, had a per capita GNP of $300. Singapore's leaders
decided to make Singapore a haven for international
corporations -- believing that the only way to prevent
Communist takeover was to advance economic and social
programs for the people of Singapore.
As a step in carrying out this objective, Singapore
built a 8800-acre industrial park, in which over 620 corporations
employing nearly 70,000 workers have located in the short space
of twelve years, and the per capita GNP has gone up from
$300 in 1964 to $2000 today-- the third highest in Asia. The
program has been so successful that they are now expanding to
14,000 acres and expect to attract over 1,000 factories.
This development shows what can be accomplished by imaginative
governmental policy to attract industry. I believe the basic
concept is adaptable to major city redevelopment here in the
United States.
A brochure of Singapore's "Jurong Town Corporation" is
attached.
FORD is GERALD LIBRARY