Developmental State: The Politics of Business, Poverty, and Economic Empowerment from the New Deal to the New Democrats Randall Brentson Cebul Brooklyn, New York Master of Arts, University of Virginia, 2008 Bachelor of Arts, Hamilton College, 2003 A Dissertation presented to the Graduate Faculty of the University of Virginia in Candidacy for the Degree of Doctor of Philosophy Department of History University of Virginia August 2014 Cebul Table of Contents Table of Contents 1 Acknowledgments 2 List of Abbreviations 4 Introduction Defining the Developmental State 5 Section I: Building the Developmental State, 1932-1965 Chapter 1 Working for New Deal and Wartime Development in Georgia 44 Chapter 2 The Best Location in the Nation: Cleveland’s Elite in New Deal and War 126 Chapter 3 “It Didn’t Just Happen:” Planning for Growth in Northwest Georgia 201 Chapter 4 Renewal and Revolt: The Boundaries of the Developmental State 277 Section II: Deregulating the War on Poverty, 1965-1975 Chapter 5 Deregulating the War on Poverty in Cleveland 341 Chapter 6 Deregulating the War on Poverty in Georgia 409 Section III: Business Producerism and Developmental States, 1965-1995 Chapter 7 Business Producerism / Urban Populism in Cleveland 466 Chapter 8 Competitive Federalism: The Southern Growth Policies Board, the Politics of Inflation, and the Origins of “New” Democrats 522 Chapter 9 Cleveland’s Public-Private Governance in an Era of Market Speak 577 Chapter 10 Developmental States: New Democrats and the New Economy 641 Epilogue 709 Bibliography 738 1 Cebul Acknowledgments A number of institutions generously supported my research and writing. These include the Gerald R. Ford Presidential Library, the John Anson Kitridge Educational Fund, the Bankard Fund for Political Economy, the Institute of the Humanities and Global Cultures, the Hagley Museum and Library, the Eisenhower Institute, and the Miller Center. The Corcoran Department of History and U.Va.’s Graduate School of Arts and Science also provided critical summer research funds. I have been fortunate to have a number of wonderful intellectual homes at the University of Virginia. In the History Department, Jennifer Burns, Peter Onuf, Edmund Russell, Mark Thomas, and Olivier Zunz have been inspiring teachers, generous readers, and incisive commenters. Claudrena Harold is a powerful teacher, probing questioner, and always a breath of fresh air. Conversations with Grace Elizabeth Hale rank among the most stimulating and inspiring moments of graduate school, and she quite literally set me on the course that resulted in this dissertation. At critical moments, Michael Holt and Philip Zelikow delivered generous support for and outsized faith in this project. Jenni Via always had the answer. At the Institute for Advanced Studies in Culture, Josh Yates and the Thriving Cities and New Spirits of Capitalism teams continue to challenge me and inspire new ways of thinking about historical problems. The Miller Center’s many scholars and staff have been essential for my intellectual development. Since my first year in graduate school, Guian McKee has been a generous reader and friend. Sidney Milkis and Vesla Weaver helped introduce me to the world of APD. Connections to and collaborations with years of Miller Center Fellows have enriched my work in incalculable ways. Most importantly, however, the Miller Center is home to the most indefatigable, supportive, good-humored, and astute advisor a graduate student could wish for. Though he warned me against producing yet “another history of conservatism,” Brian Balogh’s encouragement of both the project and my professional development has been steadfast. Having read every word I’ve produced, Brian continues to be an unmatched resource, advocate, confidant, mentor, model, and friend. I am so grateful to him. This project would never have come together were it not for the generosity of many many friends and family members who offered couches and guest rooms – and, most importantly, wonderful diversions when I slunk in from the archives. Justin Bain and Brooks Batcheller, in particular, repeatedly welcomed me into their homes in Los Angeles and Atlanta for literally weeks on end. On shorter research trips and on the conference circuit, I looked forward to spending evenings 2 Cebul with so many: Dan and Adrienne, Dan and Annie, Dennis and Lisa, Doug and Dani, Fabrizio, John and Eleanor, Sasha, Scott and Julie, and the Zieglers. In Cleveland, Taras Szmagala spent hours with me explaining the city’s white ethnic politics, his family’s history, and making vital connections. Likewise, George and Irene Harper welcomed me into their home in Rome, Georgia, told so many stories, and introduced me to many other Romans. Thank you all. I have greatly benefitted from the insights and criticism of many scholars who have read and commented on my work. These include Lizabeth Cohen, Gareth Davies, David Freund, Lily Geismer, Louis Hyman, Richard John, Matthew Lassiter, Suleiman Osman, Kim Phillips-Fein, Bruce Schulman, and Ben Waterhouse. Joe Crespino and Jim Sparrow deserve extra thanks for their willingness to read the bulk of the project and offer critical insights and advice for transitioning this behemoth into a book manuscript some humans might actually want to read. In both Charlottesville and New York, I have enjoyed the camaraderie of a great group of confederate historians including Jaime Allison, Michael Brenes, Bart Elmore, Chris Loomis, Andrew McGee, Laura Phillips-Sawyer, Mason Williams, and Kelly Winck. For the duration, no one has been more important than Stephen Macekura. He helped me maintain my sanity (except during a particular Cavs-Celtics series) and simultaneously played an extraordinary role in my intellectual development. I don’t think I would have made it through grad school without our intellectual partnership and our friendship. I undertook my first historical project in elementary school when I interviewed my grandfather about his experiences in World War II. Without the love and support of my family, and of my grandparents in particular, Bob and Cheer, Ray and Alice, I would never have completed the dissertation, let alone started it. My parents, Mary-Scott and Randy, supported me in every way imaginable, and their love and encouragement inspired me to stick with it – at one precarious moment in particular. They are each models of active and engaged scholars who don’t simply seek to understand the world but to make it a better place. It was wonderful to have my brother Kerry in DC, near Charlottesville, and it’s even better now that he’s just down the street in New York. His dogged work ethic and good humor are a constant source of wonder and inspiration, his friendship a vital source of sustenance and joy. Finally, Katherine Treppendahl has enriched my life in ways I could have hardly fathomed. To have a partner blessed with such grace, encouragement, energy, understanding, intellect, and cheer has been my life’s greatest gift. This project is for my family, all of whom I love so much. 3 Cebul List of Abbreviations Advanced Technology Development Center, Georgia Tech (ATDC) Advisory Commission on Intergovernmental Relations (ACIR) Aid to Families with Dependent Children (AFDC) Agricultural and Industrial Development Board of Georgia (AIDB) Appalachian Regional Commission (ARC) Area Redevelopment Administration (ARA) Better Home Towns (BHT) Buckeye Woodland Community Congress (BWCC) Citizens to Bring Broadway Back (CBBB) Civil Works Administration (CWA) Civilian Conservation Corps (CCC) Cleveland Advanced Manufacturing Program (CAMP) Cleveland Development Foundation (CDF) Cleveland Electric Illuminating (CEI) Community Action Program (CAP) Community Development Block Grants (CDBG) Congress of Racial Equality (CORE) Coosa Alabama River Improvement Association (CARIA) Coosa Valley Area Planning and Development Commission (CVAPDC) Council of Economic Advisors (CEA) Cuyahoga County Relief Administration (CCRA) Democratic Leadership Council (DLC) Economic Development Administration (EDA) Electric Home and Farm Authority (EHFA) Engineering Experiment Station, Georgia Tech (EES) General Revenue Sharing (GRS) Greater Cleveland Growth Association (GCGA) Health, Education and Welfare, Department of (HEW) Housing and Urban Development, Department of (HUD) Helping Our People Educationally (HOPE) Industrial Development Branch of Georgia Tech (IDB) Metropolitan Applied Research Center (MARC) National Association for the Advancement of Colored People (NAACP) National Association of Manufacturers (NAM) National Industrial Recovery Act (NIRA) 4 Cebul National Peoples Action (NPA) National Resources Planning Board (NRPB) Northwest Georgia Branch of Georgia Tech’s Engineering Experiment Station (NGB) Office of Economic Opportunity (OEO) Office of Management and Budget (OMB) President’s Appalachian Regional Commission (PARC) Public Works Administration (PWA) Reconstruction Finance Corporation (RFC) Rome Vocational School (RVS) Small Business Administration (SBA) Southern Growth Policies Board (SGPB) Southern Technology Council (STC) Tennessee Valley Authority (TVA) Ukrainian National Association (UNA) Urban Development Action Grants (UDAG) Waterloo Beach Homeowners Association (WBHA) West Central Georgia Area Planning and Development Commission (WCAPDC) Works Progress Administration (WPA) 5 Cebul Introduction: Defining the Developmental State In the wake of the 2008 financial crisis, conservatives blasted the Obama Administration for devoting part of its stimulus