REGIONAL PLANNING ISSUES ' HEARINGS BEFORE THE SUBCOMMITTEE ON URBAN AFFAIRS OF THE JOINT ECONOMIC COMMITTEE CONGRESS OF THE UNITED STATES NINETY-SECOND CONGRESS FIRST SESSION PART 3 MAY 11, 12, 13, AND 18, 1971 Printed for the use of the Joint Economic Committee 0 ' U.S. GOVERNMENT PRINTING OFFICE 52-355 WASHINGTON: 1971 For sale by the Superintendent of Documents, U.S. Government Printing Office Washington, D.C. 20402- Price $1 'eo -r JOINT ECONOQMIC COMMITTEE (Created pursuant to sec. 5 (a) of Public Law 304, 79th Cong.) WILLIAM PROXMIRE, Wisconsin, Chairman WRIGHT PATMAN, Texas, Vice Chairman SENATE HOUSE OF REPRESENTATIVES JOHN SPARKMAN, Alabama RICHARD BOLLING, Missouri J. W. FULBRIGHT, Arkansas HALE BOGGS, Louisiana ABRAHAM RIBICOFF, Connecticut HENRY S. REUSS, Wisconsin HUBERT H. HUMPHREY, Minnesota MARTHA W. GRIFFITHS, Michigan LLOYD M. BENTSEN, JR., Texas WILLIAM S. MOORHEAD, Pennsylvania JACOB K. JAVITS, New York WILLIAM B. WIDNALL, New Jersey JACK MILLER, Iowa BARBER B. CONABLE, JR., New York CHARLES H. PERCY, Illinois CLARENCE J. BROWN, Ohio JAMES B. PEARSON, Kansas BEN B. BLACKBURN, Georgia JOHN It. STARK, Executive Director JA-AES W. KNOWLES, Director of Research ECONOMsISTS Lucy A. FALCONE Ross F. HAHIACHEK JERRY J. JASINOWSKI F. MCHuGH JOHN R. KARLIK RICHARD F. KAUFMAN LOUGOLIN COURTENAY M. SLATER J. BARR Minority: GEORGE D. KRUMBHAAR, Jr. (Counsel) WALTER B. LAESSIG LESLIE SuBcoMM'rITTEE ON URRAN AFFAIRS RICHARD BOLLING, Missouri, Chairman HOUSE OF REPRESENTATIVES SENATE HENRY S. REUSS, Wisconsin ABRAHAM RIBICOFF, Connecticut MARTHA W. GRIFFITHS, Michigan WILLIAM PROXMIRE, Wisconsin WILLIAM S. MOORHEAD, Pennsylvania HUBERT H. HUMPHREY, Minnesota WILLIAM B. WIDNALL, New Jersey JACOB K. JAVITS, New York CLARENCE J. BROWN, Ohio CHARLES H. PERCY, Illinois BEN B. BLACKBURN, Georgia 11) CONTENTS WITNESSES AND STATEMENTS TUESDAY, MAY 11, 1971 Bolling, Hon. Richard, chairman of the Subcommittee on Urban Affairs, Pagc opening statement -301 Ash, Hon. Roy L., Chairman, President's Advisory Council on Executive Organization -302 Ink, Hon. Dwight A., Assistant Director, Office of Management and Budg- et, accompanied by William K. Brussat -311 WEDNESDAY, MAY 12, 1971 Bolling, Hon. Richard, chairman of the Subcommittee on Urban Affairs, opening statement -385 Hughes, Phillip S., senior fellow, the Brookings Institution -386 Young, Robert N., chairman, Metropolitan and Regional Planning Depart- ment, American Institute of Planners, and executive director, Baltimore Regional Planning Council, Baltimore, Md., accompanied by Phil Clayton, assistant director, Regional Planning Council, Baltimore, Md 391 THURSDAY, MIAY 13, 1971 Bolling, Hon. Richard, chairman of the Subcommittee on Urban Affairs, opening statement -427 Freilich, Robert H., professor of law and director of urban legal studies, University of Missouri School of Law, Kansas City, Mo -427 Hirsch, Werner Z., professor of economics, University of California -470 TUESDAY, MAY 18, 1971 Bolling, Hon. Richard, chairman of the Subcommittee on Urban Affairs, opening statement -499 Elkin, Norman, executive director, Illinois Commission on Urban Area Government -500 Goodman, William, chairman, Department of Urban and Regional Planning, University of Illinois at Urbana-Champaign -505 Smallwood, Frank, Orvil E. Dryfoos professor of public affairs, Dartmouth College -513 SUBMISSIONS FOR THE RECORD TUESDAY, MAY 11, 1971 Ash, Hon. Roy L., prepared statement -306 Ink, Hon. Dwight A., et al., prepared statement with attachments -315 WEDNESDAY, MAY 12, 1971 Young, Robert N., et al., prepared statement with an appendix -397 THURSDAY, MAY 13, 1971 Freilich, Robert H., prepared statement with appendixes -436 Hirsch, Werner Z., prepared statement -478 TUESDAY, MAY 18, 1971 Elkin, Norman, prepared statement -530 Goodman, William, prepared statement with attached appendix and charts -507 Smallwood, Frank, prepared statement with an attachment -516 (m) REGIONAL PLANNING ISSUES TUESDAY, MAY 11, 1971 CONGRESS OF THE UNITED STATES, SUBCOMMITTEE ON URBAN AFFAIRS OF THE JOINT ECONOMIC COMMrITEE, Wa8hingto'n, D.C. The subcommittee met, pursuant to notice, at 10:05 a.m., in room 1202, New Senate Office Building, Hon. Richard Bolling (chairman of the subcommittee) presiding. Present: Representative Bolling; and Senators Javits and Percy. Also present: James W. Knowles, director of research; George D. Krumbhaar, Jr., minority counsel; and Walter B. Laessig and Leslie J. Barr, economists for the minority. OPENING STATEMENT OF CHAIRMAN BOLLING Chairman BOLLING. The subcommittee will be in order. This morning the Subcommittee on Urban Affairs of the Joint Economic Committee begins 3 weeks of hearings which constitute parts 3 and 4 of an extensive study of Regional Planning Issues which began last October with 3 days of hearings. Part 2 of the rec- ord of this study consists of several contributed papers. This vol- ume is being released today. The purpose of the hearings starting this morning is to complete the exploration of the issues involved in regional planning and the relationship of planning efforts of the State and local level to the operations of the various Federal departments. We look forward to developing in these last weeks of public testimony the remaining ideas and facts that will enable the subcommittee to recommend cri- teria for designing improved relationships between the Federal gov- ernment and the cooperative efforts by State and local authorities and private interests in the planning and execution of regional oper- ations. We hope that these hearings will bring forward ideas that will contribute to the solution of the apparent contradictions be- tween the demands for increased grass-roots democracy on the one hand, and on the other, the demand to solve the expanding problems of our era through creation of ever larger multijurisdictional au- thorities. We believe the apparent conflicts and views that seem to prevail can be reconciled and solutions found. The subcommittee has been deeply impressed by the willingness, the enthusiasm, and the creativity of potential witnesses for these hearings. We have throughout been in the fortunate position of being able to select from among many possibilities. We are most (301) 302 grateful to all who have been so willing to make sacrifices on our be- half. Before introducing today's witnesses I would like to announce a couple of changes in this week's schedule of witnesses and meeting rooms. We had originally planned to hear from Mr. Ben W. Heine- man, Chairman of the Chicago & Northwestern Railway Co. tomor- row, W11-ednesday, May 12. Because of unforseen changes in Air. Heineman's schedule he will not be able to be with us until some time later this month. We will announce that date when we have it. Tomorrow we will have an additional witness, Mr. Robert N. Young, Chairman of the Metropolitan and Regional Planning De- partment of the American Institute of Planners. Thursday, May 13, we will meet in Room 318 of the Old Senate Office Building, rather than in S-407, as stated in the press release of May 3. Today we are particularly fortunate to open these hearings with testimony from the distinguished Chairman of the President's Advi- sory Council on Executive Organization, Mr. Roy L. Ash. Mr. Ash is also President of Litton Industries. Our other witness is Mr. Dwight A. Ink, Assistant Director of the Office of Management and Budget. He is the OMB expert in the field of regional organization and management. We have consulted with the two witnesses, and it is agreeable with them for us to hear both of them before beginning our questioning. And we will proceed in that fashion. M r. Ash, we are delighted to have you with us. And you may pro- ceed with your own statement in your own way. STATEMENT OF HON. ROY L. ASH, CHAIRMAN, PRESIDENT'S ADVISORY COUNCIL ON EXECUTIVE ORGANIZATION Mr. Asii. Thank you, Mr. Chairman. I am pleased to be with the subcommittee today to discuss with you the proposed reorganization of the executive branch as it relates to the interest of the subcommittee-the adaptation of political structures "to facilitate solutions to regional social and economic problemns." I have a brief statement to make, and a more extended one, which I will submit for your reading and consideration. Chairman BOLLING. That will be included in full in the record at the end of your oral statement. Mir. AsI-ti. The concern of the President's Advisory Council on Ex- ecutive Organization which I was associated with over the last 2 years was to discern how, through organization changes, the hand of responsible management at the Federal, and State and local levels of government might be strengthened. I would like to briefly outline for the subcommittee our principal recommendations. The first dealt with reorganization. One recommendation was to reorganize seven domestic program departments into four. Bills have been submitted to Congress, and hearings will be held next month. I will not go into departmental reorganization this morning except to suggest its impact on State and local government. Basically, reorganization should make it easier to do business with the Federal Government. The four departments organized around major problems will have clear and less complicated lines of author- ity and less fragmentation of functions and programs. The goals 303 and objectives of their programs should be much better understood. Also State and local government will be less likely to get caught in the middle between fragmented parts of the Federal bureaucracy