URBAN AMERICA: GOALS ANDM RO HEARINGS 0OF THU JOINT ECONOMIC COMMXITTEE CONGRESS OF THE UNITED STATES UNOMIETH CONIGRMSS SEPTEMBER 27, 2OCTOBER 2, 3, AND 4,1907 Printed for the use of the Joint .eonomic Committee URBAN AMERICA: GOALS AND PROBLEMS HEARINGS BEFORE THE SUBCOMMITTEE ON URBAN AFFAIRS OF THE JOINT ECONOMIC COMMITTEE CONGRESS OF THE UNITED STATES NINETIETH CONGRESS FIRST SESSION SEPTEMBER 27, 28, OCTOBER 2, 3, AND) 4, 1967 Printed for the use of the Joint Economic Committee U.S. GOVERNMENT PRINTING OFFICE 85-198 0 WASHINGTON: 1967 For sale by the Superintendent of Documents, U.S. Government Printing Office Washington, D.C. 20o2 -Price 65 cents JOINT ECONOMIC COMMITTEE [Created pursuant to see. 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 HERMAN E. TALMADGE, Georgia HENRY S. REUSS, Wisconsin STUART SYMINGTON, Missouri MARTHA W. GRIFFITHS, Michigan ABRAHAM RIBICOFF, Connecticut WILLIAM S. MOORHEAD, Pennsylvania JACOB K. JAVITS, New York THOMAS B. CURTIS, Missouri JACK MILLER, Iowa WILLIAM B. WIDNALL, New Jersey LEN B. JORDAN, Idaho DONALD RUMSFELD, Illinois CHARLES H. PERCY, Illinois W. E. BROCK 3n, Tennessee JOHN R. STARE, Erecutive Director JAMES W. KNOWLES, Director of Research ECONOMISTS WILLSAM H. MOORE JOHN B. HENDERSON GEORGE R. IDEN DONALD A. WEBSTER (Minority) SUBCOMMITTEE ON URBAN 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 JACOB K. JAVITS, New York WILLIAM B. WIDNALL, New Jersey CHARLES H. PERCY, Illinois W. E. BROCK 3D, Tennessee JAMES W. KNOWLES, Director of Research RICHARD F. KAUFMAN, Economist II CONTENTS WITNESSES AND STATEMENTS WEDNESDAY, SEPTEMBER 27 Page Bolling, Hon. Richard, chairman of the Subcommittee on Urban Affairs of the Joint Economic Committee: Opening remarks- 1 Announcement of hearings and schedule- 2 Goodman, Percival, FAIA, professor of architecture, Columbia University .5 Hall, Edward T., professor of anthropology, Northwestern University_ 6 Hirsch, Werner Z., professor of economics, and director, Institute of Gov- ernment and Public Affairs, University of California, Los Angeles- 8 Wadsworth, Homer C., president, Kansas City Association of Trusts & Foundations, Kansas City, Mo -11 THURSDAY, SEPTEMBER 28 Levy, Leo, psychologist, director of mental health planning, Department of Mental Health, State of Illinois -- 34 Michael, Donald, professor of psychology, University of Michigan- --- 35 Starr, Roger, executive director, Citizen s Housing and Planning Council of New York, Inc -38 MONDAY, OCTOBER 2 Curtis, Hon. Thomas B., U.S. Representative, Second Congressional Dis- trict of Missouri - 67 "Demographic Change and Racial Ghettos: The Crisis of American Cities," by Herbert Hill, national labor secretary of the NAACP 99 Kimball, Charles, president, Midwest Research Institute, Kansas City, Mo -69 Thompson, Wilbur R., professor of economics, Wayne State University_ 72 TUESDAY, OCTOBER 3 Gutheim, Frederick, consultant on urban affairs, Washington, D.C -156 Heilbrun, James, professor of economics, Columbia University -157 Kotler, Milton, resident fellow, Institute for Policy Studies, Washington, D.C-159 WEDNESDAY, OCTOBER 4 Abrams, Charles, chairman, City Planning Department, Columbia Uni- versity - 186 Choate, Robert, program associate, National Institute of Public Affairs 187 Contini, Edgardo, partner, Victor Gruen Associates, Los Angeles, Calif--- 189 Hartman, Chester, professor of urban planning, Harvard-MIT Joint Center for Urban Studies -192 Slayton, William, executive director, Urban America, Inc., Washington, D.C------------------------------- 194 INDEX----------------------------------------------------------- 231 m URBAN AMERICA: GOALS AND PROBLEMS WEDNESDAY, SEPTEMBER 27, 1967 CONGRESS OF THE UNITED STATES, SUBCOMMITTEE ON URBAN AFFAIRS OF THE JOINT ECONOMIC COMMITTEE, Washington, D.C. The subcommittee met at 10 a.m., pursuant to call, in room S-407, the Capitol, Hon. Richard Bolling (chairman of the subcommittee) presiding. Present: Representatives Bolling and Grifliths; Senators Javits and Percy. Also present: John R. Stark, executive director; James W. Knowles, director of research; Donald A. Webster, minority staff economist; and Richard F. Kaufman, staff economist. Chairman BOLLING. The subcommittee will be in order. This morning the Subcommittee on Urban Affairs of the Joint Economic Committee begins the first public hearings in its long-range study of the problems of our urban environment. We are convinced that concern over the future of our urban environ- ment should receive a high priority in the Congress as well as in the deliberations of the public and in the work of the various specialists who can help us to understand the urban environment and find solu- tions to its problems. This subcommittee's studies have been undertaken in order to stimulate new thinking about urban goals and problems, to highlight areas of agreement and disagreement among the experts about the nature of the most pressing problems and the approaches to their solution. With this end in mind, we have already published a Directory of Urban Research Study Centers in August of this year, and in Septem- ber a compendium of invited papers from more than 20 specialists in many different fields of expertise which we entitled "Urban America: Goals and Problems." The hearings opening today are based upon that compendium. The witnesses are the experts who have contributed papers to that com- pendium. The panel on each day will be made up of individuals with widely different types of knowledge and skill including such diverse specialists as economists, sociologists, lawyers, psychiatrists, anthropologists, and others. We hope this diversity of talents will enable us to grind away at the conflicts between different viewpoints and approaches and at the same time achieve a more rounded and complete view of these problems by drawing on the expertise of many different disciplines. We aim, too, at bringing the specialized policy issues in the area of urban affairs into a more rigorous relationship with the broader na- 1 2 URBAN AMERICA: GOALS AND PROBLEMS tional issues with which our parent committee is concerned; namely, those relating to the achievement of stable prices, full employment, and rapid economic growth in a free enterprise economy. From this initial review we hope to not only shed much light on the problems before the subcommittee, but to give us a firm foundation for the intelligent direction of our resources in later stages of the investigation. At this point in the record we will include the hearing announcement and schedule of witnesses. REPRESENTATIvE BOLLING ANNOUNCES HEARINGS ON URBAN AMERICA: GOALS AND PROBLEMS Representative Richard Bolling (D., Mo.), Chairman of the Subcommittee on Urban Affairs of the Joint Economic Committee, today announced that the Subcommittee will hold five days of hearings-September 27, 28, and October 2, 3 and 4-on "Urban America: Goals and Problems." Representative Bolling also released a compendium of papers prepared for the Subcommittee by a number of specialists in the field of urban affairs. In announcing the hearings and releasing the compendium, Mr. Bolling said: "Concern over the future of our urban environment should occupy a high priority in Congress as well as in the minds of the general public. In order to stimulate new thinking about urban goals and problems, and to find out the areas of disagreement among the experts about the nature of the most pressing problems and the approaches that should be taken toward their solution, the Subcommittee invited over twenty specialists to contribute papers for a com- pendium entitled, Urban America: Goals and Problems. "The hearings scheduled for later this month will be based largely on the compendium. The experts who contributed papers will appear in panels as.wit- nesses before the Subcommittee. The panels are made up of individuals with widely different expertise, including on each panel such diverse specialists as economist, architect, political scientist, lawyer, psychologist, anthropologist, and others. "In view of our objectives and our hope to take a much broader view of the urban environment than more specialized organizations often achieve, we have divided the subject matter into four general categories and assigned each of the specialists to address himself to one of them. These categories are: Goals, Values and Priorities; Functional Problems; Rules of the Game: Public Sector; and Rules of the Game: Private Sector. "The hearings will complete the first phase of a long-range investigation of the problems of our urban environment being conducted by the Subcommittee." Due to the limited number of volumes printed for the Committee, copies of Urban America: Goals and Problems are available to members of the Press in Room G-133, New Senate Office Building (Telephone: 225-5321). Also, this volume is on sale at the Government Printing Office, Superintendent of Docu- ments, for 75 cents. REPRESENTATIVE RICHARD BOLLING ANNOUNCES SCHEDULE OF HEARINGS ON URBAN AMERICA: GOALS AND PROBLEMS Representative Richard Bolling (D., Mo.), Chairman of the Subcommittee on Urban Affairs of the Joint Economic Committee, today issued a schedule of hear- ings