Box 15, Folder 2, Document 28

1612 K STREET, NORTHWEST
WASHINGTON, D.C. 20006
Vol. I, No. 2, December, 1969
HEW INCREASES FUNDS FOR MODEL CITIES
The Department of Ht;alth, Education, and Welfare has announced tentative figures for funding reservations for Model
Cities; the Department will _be placing in reserve for Model Cities use a total of $54.8 million for 38 programs. Specific
program earmarks are not yet available. In addition to these reserved funds, HEW's support for Model Cities in FY 70 will
include continuations of funding for Model Cities projects funded from FY 69 resources, currently estimated at between
$50-60 million of FY 70 project grant funding. HEW also plans to provide support to model cities through technical
assistance contracts and non-geographically focused programs.
For the first time, HEW will utilize formula grant resources that will be "targeted" for Model Cities use in selected State
plan programs on a demonstration basis. HEW will attempt to seek redeployment of State plan funds to be used more
effectively in model neighborhoods, as a complementary approach to funding reservations, which is aimed at increased use by
Model Cities of the large institutional funds passing through the state which constitute 80-90% of HEW's total funds.
Thus, the total FY 70 support for Model Cities from HEW will be in the neighborhood of $ 100-120 million, plus
nonreserved priority programs and redirected formula grant resources. These earmarks are subject to the appropriation
process and may be affected by the level of HEW appropriations for these programs.
HEW ENCO URAGES WIDE USAGE
OF "SERVICE" FUNDS
On November 10, 1969, the Under Secretary of
HEW, John Veneman , issued a new policy statement aimed
at encouraging improved coordination of the massive institutionalized HEW dollars now going into the Model Cities
areas. He cited the limited use of HUD supplemental funds
in Model Cities as part or all of the non-federal share in
formula grant programs which require "local" matching. To
date, "limited HUD supplemental funds are being used to
provide services which can be readily provided under the
institutionalized programs of HEW and other departments.
The services being purchased with 100% HUD and local
funds include day care, pre-vocational counseling, employment counseling, adult and pre-school education, welfare
consultant planning, homemaker services .. ." He stressed
that the new policy would require innovative approaches
toward uses of HEW resources and the close cooperation of
the appropriate State agencies.
Examples of innovative uses of HEW funds and HUD
supplemental funds can be found in the Baltimore,
Maryland, and Portland, Maine, Model Cities program. In
Portland, HUD has declared the whole city eligible for day
care services and has provided $230,500 worth of supplementals to be matched with $872,000 of Title IV-A HEW
funds. Baltimore has a variety of day care programs, each
funded on a 3: 1 (HEW: HUD) basis. One program provides
for a decentralized system of six centers for a total of
$393,452. Another provides "block day care" facilities for
a total of $346,627. A third facet of the program provides a
$35,527 emergency aide child care service. In all of these
programs, HUD supplemental funding has served as a fiscal
incentive to innovative programs.
ASSISTANT SECRETARY HYDE RESPONDS
TO STEERING COMMITTEE
In response to requests by the Model Cities Directors
Association, Assistant Secretary Floyd Hyde responded in a
letter to Michael DiNunzio, Denver CDA Director, on
November 12, 1969, on several areas of crucial concern. In
his letter, the Assistant Secretary stated :
"In order that the Model Cities Service Center
can satisfactorily carry out the activities you
suggested in your September 5 letter, which are
(Con tinued on page 2 )
�The CDA Director, chosen from the School of
Engineering, was given a one year leave of absence in which
to complete the Model City planning; all other faculty consultants retained their teaching assignments but were expected to inject relevancy into their classes through the
Model City planning effort. The Assistant Director, who
had OEO and Federal program experience, was chosen to
provide continued direction following termination of the
University contract. Rounding out the CDA staff was a
model neighborhood planning aid and an office secretary.
similar to my own conception of the Center's
activities, I would be receptive to utilizing
supplemental funds for dues to be paid to the
Center for activities related to the Directors'
Association. As I have stated before, however, I
do not wish to separate the CDA Directors
from the city governments which have ultimate
responsibility for the Model Cities program."
The Assistant Secretary also noted that it was most
important that CDAs be involved early in the process of
selection and negotiation of contracts with state governments. He stated, "We also intend to involve CDAs in
evaluating these state technical assistance contracts." The
letter went on to suggest that the Association might wish to
establish working committees on such activities as state
role. These committees would work with MCA staff on
matters of common interest and concern. Mr. Hyde closed
his letter on the following note: "I look forward to working
closely with the Association."
This staff of four is responsible for coordinating
planning activities, scheduling meetings, arranging for
expert consultations to task forces, and submitting required
reports to HUD. The university consultants serve as discussion moderators to citizen task forces, submit meeting
reports, conduct data searches and joint problem analyses;
they are also responsible for preparation of the mid- .
planning and final planning statement in compliance with
submission requirements.
After five months of problem analysis these University consultants had acquired sufficient data, information,
and community perspective to prepare detailed summaries
of citizen attitudes and needs for improved urban life that
would form the basic components of the required MidPlanning Statement. Following a series of writing sessions
that involved CDA Staff, consultants and citizen representatives, a Mid-Planning Statement was prepared for submission to the Model Cities Review Board and City Council. It
outlined the city's problems, community objectives to
relieve these problems, and a strategy for achieving them all of which reflected the needs and desires of the neighborhood residents. The total time-period consumed was six
months - the time alloted in the original work planning
schedule.
UNIVERSITY INVOLVEMENT: THE COOKEVILLE,
TENNESSEE EXPERIENCE
Written by CDA Director A. Cannella, this article
describes the Cookeville, Tennessee experience in
utilizing university talent to meet HUD's planning requirements. It does not purport to be the only solution to personnel shortage problems, but suggests a
source of professional assistance available to many
communities.
After its selection as a second round city in November, 1968, Cookeville officials endeavored to hire CDA staff
to complete the first year planning effort as prescribed in
HUD guidelines. Because Cookeville is a semi-rural community of 15,000 and in a depressed area of Appalachia,
staff planners of the type required are not locally available.
The city is the home of Tennessee Technological University, a source of ample professional and para-professional
persons most of whom reside in the city. Consequently ,
after a futile search for staff employees, the city contracted
with Tennessee Technological University to provide a fulltime CDA Dir~ctor and seven consultants to work continuously with citizen task forces throughout the planning process. In addition , graduate students with specific talents
were provided to undertake research studies such as housing
needs, solid wastes management, health facilities and
others. All facilities of the University were available to the
CDA, including an IBM 360 Computer with requisite software and programmers. The faculty and students assigned
were selected on the basis of their knowledge, interests, and
wi!Iingness to work cooperatively with citizens of every
type background and economic level without pedantry.
During the next three months these University consultants will continue to update the Mid-Planning Statement by filling data gaps, preparing program descriptions
and budget requirements and setting an order of activity for
the first year action plan. This will , of course, involve continued meetings with citizens as well as agency heads and
local officials.
The University-CDA effort has proven most satisfactory and the results achieved thus . far are very commendable. Professional areas represented by the seven task
force consultants include sociology , history , political
science, economics, engineering and education. They have
all developed outstanding rapport with neighborhood residents participating in the task forces analyses and have
served as excellent catalysts in group dialogue ; they have, in
effect, provided sensitivity training within their respective
task forces , producing a temporizing influence that has
been most beneficial in achieving the objectives of Model
City planning.
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UNIVERSITIES AN D URBAN PROBLEMS
Training and Technical Assistance
There is a natural tendency to look to universities for
training and technical assistance support in the fields of
community action and community development. However,
results thus far have been, at best, mixed. It is clear that the
"glancing blow" technique is unsuccessful. Exposure of
agency or organization personnel to brief, one-shot lectures
or seminars provided by the universities is of little value.
The faculty member usually has no deep understanding of
the strengths and weaknesses of processes and programs
that the agency might employ to achieve its objectives; the
faculty person is, therefore, perceived by the staff or
agency volunteers as dealing in generalizations or abstractions. Additionally, the more formally structured classroom
approach tends to be repellant to many community
workers.
The following article, written especially for the Technical Bulletin, is by Dr. Thomas Broden, Director of
Urban Studies at the University of Notre Dame. The
author's premise is that the universities have thus far
contributed to the conditions of blight and poverty
instead of helping to remedy them. The forthcoming
discussion is concerned with ways in which this cycle
can be reversed.
Internal Reform
If the universities wish to be helpful to the Model
Cities efforts, they must first ask themselves several questions which reflect the current state of their internal operations: Do the recruiting, admission, and aid practices of the
university result in a student population fairly representative of Black, Mexican-American, and Indian students?
What can the university do to improve this record? How
many minority faculty members, administrators, employees,
and trustees does the university have? What can be done to
improve this record? Is the curriculum of the university
reflective of the multi-racial and multi-cultural character of
the world in which we live? Does it accurately deal with
race and cultural relations, past and present, in America and
around the world? Do the community relations and investment policies of the university help or hinder the achievement of the Model Cities goals of community development,
the alleviation of poverty, and equality of opportunity?
What can be done to improve this?
The talents of faculty members or stude"nts for
training and technical assistance are more likely to be
helpful if a more personal, cooperative working relationship
of some duration can be established between the Model
Cities staff or volunteers and university persons. Representatives of the university should make clear the kinds of
resources - legal, accounting, architectural, economic
development, management, community development, etc.
- that are available. It is then up to the Model Cities
neighborhood residents, staff or volunteers to decide
whether or not they wish to avail themselves of the services
of these students or faculty. If they do then an on-going
working relationship, preferably in the community, can be
established so that the general professional or disciplinary
capabilities of the student or faculty can be translated into
the circumstances of the particular community and program involved.
Qualitative improvement in our communities will
only take place when our basic institutions - schools, business, labor, industry, law enforceme nt, courts, government
services, church - are changed and become more open to
and responsive to the needs and interests of all citizens.
Universities must change in this regard and their change
may encourage other institutions to do likewise. In any
event, it is necessary to clean up one's own house before
presuming to help out elsewhere.
This requires joint planning by the university representatives and persons in the community. It also implies an
expenditure of time and effort on the part of faculty and
students that exceeds "spare time" activities. This means
that student work-study of this kind should address fundamental causes of blight and poverty such as institutional
racism; impersonality , ineffectiveness, and injustice of
modern urban institutions; the difficulty and complexity of
urban environmental control ; and so o n. The student
sh ould understand the strategy and tactics of the organization or group he is working with to alleviate one or more of
these root causes and scientifically report his findings and
conclusions from time to time. There should be regular
meetings with community people, faculty members and
other students engaged in related work-study efforts. Such
work-study activities can be helpful to the community , a
learning process for the students and faculty, and the basis
for the development of a body of community research data.
When study and teaching, research and service are meshed
in to such a work-study activity , academic credit should be
nd
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In the same vein, predominantly white universities
can be helpful in interpreting the Model Cities program to
the leadership and citizenry of the white community. By
indicating support for the Model Cities effort, a white
university confers a measure of respectability and credibility on the program in the white community. This support may take many forms - from active institutional
involvement in the program to technical assistance to neighborhood and community groups who themselves are more
directly involved. This may call for a change of posture for
many universities, away from an "establishment" orientation t oward a more community-wide orientation .
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�CDA LETTER NO. 10 IS SENT
TO STEERING COMMITTEE
extended for it to the students; it should also be recognized
as part of the faculty member's semester or yearly load,
not something he is expected to pile on to an otherwise full
load.
One other word on agency staff training. Many community workers, particularly the poor or those subject to
discrimination, place a high priority on academic certification and look most favorably on training programs that
combine job skills with such certification. Many schools,
particularly community colleges, have collaborated in the
development of staff training programs which combine
more traditional college work with skills training and result
in some kind of academic certification.
The CDA Steering Committee is being sent copies of
various policy statements to be included in CDA Letter No.
10 for their comments. CDA Letter No. 10 arose out of
city submissions that have so far been reviewed. Past
experiences with model cities indicated the need to specify
what was expected of cities under the Model Cities program. The policy statements contained in this letter, supplemented from time to time, provide cities with answers to
the real questions that have not been adequately dealt with
through present requirements.
Determination that a city is in compliance with these
and other applicable policies will be an important part of
the review of comprehensive programs, and of projects and
activities within comprehensive programs. HUD expects
CDAs to distribute these policy statements to all program
participants.
The policy statements are being considered in the
following areas: Resident Employment, Administrative
Capability, Use of New Corporations, Equal Opportunity,
Citizen Participation, Economic Development, Loans, Expenditure of Funds, Use of Supplemental Funds,
Expenditure Rates, and Maintenance of Effort.
Research and Evaluation
Universities are generally more competent in the areas
of research and evaluation than they are in the areas of
training and technical assistance. In the research area
particularly, they are doing their own thing. However we
have a long way to go in the development of a system of
critical evaluation and reporting of the many pilot, demonstration, experimental, and other efforts that have been or
are addressing community problems. And we are even
farther away from the development of an effective communications network or system so that interested communities, government agencies, foundations, and universities can keep abreast of the strengths and weaknesses of
various efforts to alleviate blight and poverty. Industry,
government and the foundations have a far more effective
communications system in the field of physical sciences
than we have in this area. There are one or two encouraging
developments worthy of mention. The first is the effort to
develop indicators of social progress to serve as measures or
benchmarks of social needs and the impact of programs
addressing these needs. Implicit in this effort is the need for
a more comprehensive and consistent social information
base. The second is HUD's Urban Observatory Program
under which a handful of local communities and universities are joining in the analysis and reporting of local
efforts to alleviate social problems. The communities in the
program then are to develop a systematic exchange of data
and current information. Both of these are embryonic but
promising efforts.
COMPREHENSIVE PLANNING ASSISTANCE SUPPORT
TO MODEL CITIES FISCAL YEAR 1970
Planning funds are available to eligible applicants for
the support of Model Cities planning and evaluation
activities through the Comprehensive Planning Assistance
Program (701 Program).
1. Scope of the Program
The Comprehensive Planning Assistance Program provides grants to foster sound community , regional and statewide comprehensive planning. The broad objective of the
program is to establish the comprehensive planning process
as a continuing function of government. More specifically,
it attempts to strengthen the capacity of government to
guide the allocation of scarce public and private resources,
to address critical social concerns, to improve the quality
and efficiency of the development of land and associated
facilities, to improve the quality of analytical methods and
techniques used in the planning process , and to secure the
participation of business and voluntary groups in the
planning and development process.
Conclusion
The same can be said of university-Model Cities
cooperation. Some faculty members and students want to
make their talents available to the communities of which
they are a part and some Model Cities neighborhood residents staff and volunteers want to make use of these universit~ resources. However we are just beginning to develop
effective processes to satisfy these mutually supportive
interests.
2. Funding Levels
Assuming an expected appropriation of $50 million
in fiscal 1970 for the 701 Program, a total of $6 million is
tentatively allocated for the Special Projects Account, a
substantial portion of which is specifically identified for
Model Cities support. The remaining allocations in Special
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Projects Accounts, though directed at other priority areas,
will undoubtedly result in important, though indirect,
benefits for Model Cities. The remaining $44 million in
Regular Account is not specifically identified with Model
Cities. However, Model Cities may be among the beneficiaries of Regular Account 701. The proportion of
Regular Account funds made available to support model
cities planning will depend largely on the quality, timeliness
and relevance to national priorities of applications for
assistance.
b.
Studies, analyses and recommendations for
meeting identified problems and opportunities;
c.
Studies and analyses of government processes
and fiscal resources and capacities;
d.
Determination of priorities for action in meeting problems and fulfilling opportunities;
e.
Coordination of related planning activities;
f.
Preparation of implementation elements,
including fiscal plans and programs for capital
investment and services, and legislative, regulatory and administrative actions to support comprehensive planning;
g.
Activities necessary to establish and maintain
proper citizen participation;
h.
Reviews and evaluation studies to assess the
quality of plans and implementing instruments.
Special Projects Account activities must be innovative
in character, susceptible to careful evaluation, and. present
attempts to advance the level of knowledge in response to
urban problems. Special Projects will be closely monitored
by Central Office of Metropolitan Development; the lessons
learned will be disseminated to interested agencies throughout the country. The Special Projects Account is the
"cutting edge" of the 701 program. It was established to
encourage a fresh look at old problems, the development of
imaginative approaches to new challenges. HUD will give
special attention to those proposals which will increase the
role of Blacks, Mexican-Americans, and Indians in the comprehensive planning process, as participating citizens and
professionals. In addition, it is concerned with assisting
state governments to gear up for a concerted attack on
critical urban problems.
3. Priority Activities
Highest priority will be given to applications for 701
assistance in planning activities related to housing (including Breakthrough), minority assistance, governmental
management and coordination, citizen partjcipation,
volunteer services, inner city, water, sewer and open space.
4 . Eligible Beneficiaries and Applicants for 701 Assistance
Model cities may be eligible beneficiaries of 701
planning assistance through state planning agencies as applicants for 701 if they have populations under 50,000, are
counties regardless of size, or are exception cities, i.e., EDA
Title IV designated redevelopment areas, disaster areas, or
federally-impacted areas.
In addition, Metropolitan Regional Councils, including organizations of public officials (such as COGs), Metropolitan Planning Commissions, and Joint City-County
Planning Commissions, may be eligible applicants for 701
funding of planning activities which are carried out as part
of their metropolitan-wide planning and are closely related
and useful to model cities.
States may be eligible applicants for 701 funding to
enhance the capacity of the governor's offices to coordinate
State planning and programming activities as they relate to
and benefit local model cities planning and programming,
to assist and encourage State departments to provide
technical assistance to model cities, and to encourage State
departments in providing State program funding to Model
Cities as well as helping facilitate the flow of Federal program funding to Model Cities for which the States act as
conduit.
6. Technical Assistance
Regional HUD staff has been instructed to offer technical assistance to potential beneficiary model cities and
eligible applicants in identifying planning activities where
701 support can be most constructive. HUD Regional staff
has been urged to offer technical assistance to eligible applicants in filing applications fo r 701.
With respect to Special Projects, applicants should
not prepare complete 701 applications, but rather prepare
short (2-3 page) pre-application descriptions of proposed
activities, to be used as the basis for discussion with Regional staff.
5. Regular and Special Projects Accounts
Comprehensive 701 support to Model Cities is available from R egular A ccount and Special Projects Account.
Regular Account activities are described in the Comprehensive Planning Assistance Handbook (MD604 l. l) pp.
23-28 for activities funded through state agencies and pp.
42-44 for activities fu nded through Metropolitan Regional
Councils. Examples of eligible Regular Account activities
are :
a. Identification of human , economic, social, physical and government problems and opportunities;
7. Additional Information
Additional information regarding the Comprehensive
Planning Assistance Program as it relates to Model Cities,
will be available from the HUD Regional Model Cities
Administration staff and the Regional Program Coordination and Services staff, or from David Einhorn, Urban
Planning Advisor, Program Development Staff, MCA , HUD ,
Washington, D.C. (202-755-5524).
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�served and detailed reporting. If the agency agrees to
perform detailed project evaluation, then the CDA can concentrate on other types of evaluation such as evaluation of
the total program. However, if agencies operating projects
do perform evaluation, then the CDA must make sure that
the quality of the evaluation meets the needs of the Model
Cities program and that agency staff is available and
qualified to do the job.
c. Other evaluation activiites and resources. Many
programs in existence before Model Cities will probably be
part of the city's plan. These programs might have evaluation data which is useful for problem analysis, project
evaluation, or program evaluation. There may also be
agencies which have collected data in the past and now have
information systems which can be used. For example, a city
may have a file on land properties which gives their land use
and property value. All information sources should be used
to avoid doing work that has already been done. Also, it
may be possible for a CDA to submit a joint application for
evaluation money from programs other than Model Cities.
For example, a local planning agency might submit an
application for 701 funds to be used for Model Cities
evaluation.
Where possible, cities should use funds from different
sources for evaluation, not just supplemental money.
Money for planning surveys, for example , could be tied into
a year's evaluation activity for the program as a whole, even
though the money comes from one program source.
Demonstration projects are another source of evaluation
money, since many of these kinds of projects require
extensive evaluation activities. Planning moneys funded in
one functional area can be legitimately used for planning
and evaluation in another functional area, where there is
overlap and where the money is used to find out effects of
different programs on one another.
ORGANIZING FOR EVALUATION
This article continues the series on evaluation which
began in the first issue of the Technical Bulletin.
Reprints of this article are available on request; cities
can also modify this article for their use. In order to
make this series useful to you, we would like your
suggestions for subjects to be discussed in future
issues.
Introduction
The article about evaluation that appeared in the
previous bulletin discussed general questions of evaluation.
Many cities are faced with the practical question of how to
organize to perform evaluation. This article deals with the
conditions that affect how one decides to organize for
evaluation and the advantages and disadvantages of using
the local Model Cities Office (called City Demonstration
Agency or CDA), cooperating agencies, contractors, and
residents. Whatever the organization a city sets up for evaluation, it should always have the capability to:
a)
define what it needs to evaluate
monitor evaluation performed by persons who
b)
are not CDA staff, to assure a useful evaluation
delivered on time
analyze the information provided by evaluation
c)
d)
give the results of evaluation to all parties
making decisions
use the information to affect decisions about
e)
the program and improve the program for the
next year.
Conditions That Affect Who Performs Evaluation
Important conditions that affect who performs
evaluation are: the number and quality of staff available to
do evaluation, arrangements with cooperating agencies,
other evaluation resources and activities, and the coordinating and management function of the CDA.
a. Staff available. All other conditions being equal,
evaluation of projects coordinated by the CDA is best done
by the CDA. However, the staff may be small, cooperating
agencies may be willing to do project evaluation, and the
CDA may decide that using staff to evaluate total program
while only evaluating priority projects would be more
efficient. In general, assuming that staff is capable, the CDA
should use its own resources on the most important evaluation needs.
b. Arrangements with cooperating agencies. When a
contract is signed with an agency to operate a program, that
contract should define what kinds of data will be reported,
how often, and what other types of evaluation aside from
regular reporting will be performed by the agency. The
activities defined in the contract can vary from limited data
collecting and reporting to in tensive follow-up of people
d. Coordination and managment. In most cases, the
CDA will be coordinating and monitoring projects,
evaluating them, and planning for an improved program.
This means that, in the beginning, much of the evaluation
may be project monitoring to see that organization of
projects, their staffing, training, basic operating conditions,
etc., do occur on schedule and with desired quality.
Further, once the programs begin operating at full
capacity, the CDA will want to know what are the accomplishments of the program and the projects, whether they
are meeting expected objectives, what their problems are ,
and a host of other questions which can all be summed up
by asking, "What is happening in the program?" Regular
monitoring of the projects by the CDA staff and the operation of an information system from the cooperating
agencies to the CDA is the most common way of obtaining
such information. The size of a city, and the complexity of
a program, shape the design of such a system.
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�Alternatives in Implementing Evaluation
CDA staff are needed to be sure that the contractor is
performing the correct job, and the city may get results
which have less effect on people because there is no one
personally involved with the report or because the city may
not fully understand or be committed to the findings.
There are four basic alternatives to consider in
choosing who shall conduct evaluation; evaluation by inhouse staff, evaluation by cooperating agencies, evaluation
by a contractor, and evaluation by residents. How much
one relies on any one of these four choices affects how the
CDA is organized. There are good and bad points to consider in each choice.
a. In-House Staff. Utilizing in-house staff has the advantage of CDA control over personnel, their assignments,
and direct project supervision. Bureaucratic delays and
necessary cooperating agreements are by-passed. The translation of data analysis into recommendations for action is
sometimes considerably shortened.
Disadvantages are that CDA staff time is sometimes
not available and, if available, may get taken off evaluation
to meet emergency or other situations. Evaluation of one's
own activities is often helpful, but sometimes one can get
more useful information by having another person evaluate
your operation because he may have a more independent
view. If other agencies are to be evaluated by CDA staff,
the diplomatic channels and agreements for how this is to
be done must be worked out in detail to reduce conflict
between agencies.
b . Cooperating Agency. Utilizing cooperating
agencies for evaluation has the potential opportunities for
sharing costs, providing for data collecting in the most
efficient manner, creating in advance the groundwork for
making sure that evaluation results in action by involving
the affected agency, freeing your own staff for other work,
and generally increasing the involvement and coordination
of other agencies with the Model Cities program.
The disadvantages are that the CDA does not have
direct control over the work being performed, the agency
involved has a stake in the results of the evaluation and will
tend to be less objective, the CDA is dependent on agency
agreement, and the evaluation project will tend to be controlled by the needs of the cooperating agency. The CDA
needs must be clearly specified in advance and agreements
must be reached so that the work is done in a way that
meets CDA requirements.
c. Contract. Advantages of utilizing contractors are
that the CDA has brought specialized services presumably
tailored to needs, the contractor is responsible to the CDA,
more objectivity is acquired by utilizing someone outside
the program, staff resources are freed for other uses, and
the contractor can sometimes perform evaluation that the
CDA might not wish to undertake because of political
reasons.
Some disadvantages are that contractors often do not
train staff and therefore do not usually give a long-term
benefit to the agency , they are not familiar with the local
situation and spend time learning it, special effort by the
d. Residents. Using residents in evaluation has the
advantages of ensuring that evaluation meets the needs of
the people, helps tie the results of evaluation into future
planning and programming, helps lift the technical competence of the residents, and gives special emphasis to the
insights of people who actually experience the problems of
the neighborhood.
Some disadvantages are the lack of professional
experience and knowledge necessary for some evaluation,
necessity for training and orientation, and possible bias in
collecting data and analyzing results.
An Example to Illustrate How One Might Assign Responsibilities for Evaluating a Project
Suppose there is a project in Education which has
priority because if it is successful, it might be greatly expanded and lead to significant changes in the way model
neighborhood children were educated.
The CDA might agree with the school system that the
system would not only provide regular quarterly reporting
but that an outside consultant hired by the school system
would be used to evaluate the project in greater detail than
the regular reporting ordinarily provides. The CDA would
be given an opportunity to participate in the evaluation
design and the final report. Special provision would be
made for residents to independently comment on how the
project was operated and how it affected them.
Another situation might be that the CDA staff has an
educational expert who is respected by all parties. In this
case, he alone might be responsible for the evaluation, in
addition to the regular reporting of the school system on
the project.
· A third choice might be an independent consultant
working alone because neither the CDA nor the school
system has staff available and/or qualified to do the job. In
this case, special efforts must be made to ensure that the
consultant does his job according to the needs of the school
system and the CDA.
A fourth choice might be to assign primary evaluation
responsibility to a resident evaluation unit which is staffed
by professionals but responsible to the citizen participation
structure. The school system and the CDA Evaluation unit
would be given an opportunity to participate in the evaluation design and the final report.
Whatever choice is made about who is to do the
evaluation, the work is useless unless the report can be
understood and its findings used to decide if the project
should be changed, expanded or dropped.
- 7-
�No. 1: Process-Oriented Concerns
COMPONENT ANALYSIS : RELATIONSHIPS OF
CDAS TO CITY GOVERNMENT
A. Patterns for CDA
Structure
This pattern of internal structure is usually divided
into divisions or program units responsible for planning and
evaluation, program administration, coordination, and community organization. Of the first thirty-five model cities to
receive supplemental grants, twenty-three cities had a CDA
internal structure based on process oriented concerns.
Examples: The CDA in San Antonio, Texas, is organized
into the following units: program planning and evaluation,
program coordination, administration, and citizen participation; the CDA in Smithville-DeKalb County, Tennessee,
is organized into divisions for planning, coordination,
evaluation, and administrative and management services.
Location in City Governmental
A recent analysis completed by HUD and the Model
Cities Service Center is the result of a survey of the first
thirty-five cities approved for Model Cities implementation.
Four models, or distinct patterns, have emerged based on
the CDAs' location in the city governmental structure.
Pattern No. 1: CDA as Part of the Chief Executive
Officer's Office.
Of the first thirty-five cities, fourteen were organized
in the mayor's or city manager's office. Examples: The
Baltimore Model Cities Agency is a unit in the Office of the
Mayor and will use the powers of the Mayor for program
management and the discharge of its coordinating functions; in Denver, the Model City core staff coordinates,
evaluates, and monitors all program activities, and is
directly responsible to the Mayor and assigned to his office.
No. 2: Functional Area Concerns
This pattern of internal structure is usually divided
into divisions or units with responsibilities for one programmatic area - health, social services, physical redevelopment, etc. Of the first thirty-five Model Cities to
receive supplemental grants, thirteen cities had a CDA
internal structure based on functional concerns. Examples:
The CDA in Reading, Pennsylvania, is organized into units
that include human resources development and physical
development; the Dayton, Ohio, CDA is organized into
units responsible for health, social services, and employment as well as for planning and coordination.
Due to the nature of the Model Cities program, CDAs
that are organized based on functional areas also usually
include a unit that is process-oriented, i.e., planning and
coordination.
Pattern No. 2: CDA as a City Department.
Of the first thirty-five cities, eleven were organized as
a regular department of city government. Examples: The
Huntsville Model City Staff Office operates as a city department directly under the Mayor; the Texarkana, Texas CDA
is an established department of the city called the
Department of Community Development with status and
authority equal to that of other city departments.
Pattern No. 3: CDA as a Division or Bureau within an
Existing City Department.
OPERATING RESULTS IN
SOME EARLY MODEL CITIES
Of the fust thirty-five cities, three were organized as
divisions or bureaus of existing city departments.
Examples: Highland Park, Michigan has a Department of
Community Development with a City Demonstration
Agency Division; in Tampa, Florida, the CDA is the
equivalent of a bureau of the City of Tampa.
HUNTSVILLE, ALABAMA
Huntsville has 80 of its 84 operating projects and
activities underway. *Two hundred and fifty persons are
enrolled in adult education and vocational training. *More
than 200 youths, either first offenders or near delinquents,
are taking part in vocational training, crafts, and recreation
in a program directed by the juvenile division of the
Sheriff's office. *In-school programming, all of which began
promp tly in September, has provided for or is providing for
testing of 8 0 students, 1OS students in special education ,
and social case work with 150 potential dropouts.
Pattern No. 4: CDA as an Independent Board, Commission,
or Agency.
Of the first thirty-five cities, seven CDAs were
organized as an independent board, commission or agency
with its administra tive staff reporting direc tly to it and not
to the city's chief executive officer. The City Council has
ultimate responsibility for the program. This pa ttern of
administrative structure has caused problems fo r HUD in
the review process. Consequently , amendments have been
required to assure that the ci ty has full and ultimate
responsibility for the program and to assure that the city
exercises that responsibility.
NOR FO L K, VIRGI NIA
Although Norfolk's contract was not tendered until
August I 5, 1969, the city has negotia ted third-party contracts or agreements for 83% of its first year supplemental
fu nds. *One of the four neighborhood service centers is
open and functioning at full staff. It now offers recreational
activities, health services, mental health services, and welfare services. Soon the adult basic education and home
B. Pattern s of CDA Internal Structures
The internal structures of ci ty demonstration agencies
are organized according to one of two patterns:
- 8-
�economic class will be in operation. *Norfolk's Model Cities
education program was started immediately upon contract
for the beginning of the school year. Projects include team
teaching, teacher training, early childhood education, a
community school, and parent-teacher consultation, involving a total of 13,000 children in the model neighborhood.
total program will be underway by December 1-15. *In recognition of the City's bankrupt state, it is important to note
that supplemental funds have been successfully used as a
multiplier in several projects now underway. *The program
is using $130,000 (supplemental) to hire increased teachers
and provide better facilities for a model demonstration
school. *Another project uses $50,000 (supplemental) as
seed money by a newly established Local Development
Corp. to attract other funds to underwrite neighborhood
minority business.
CHICAGO, ILLINOIS
A good start has been made in getting the majority of
priority first year projects into operation. Twenty-five
projects totalling $26 million ( out of a total supplemental
grant of $38 million) are underway. *Two of four Comprehensive Health Centers ($2.8 million supplemental; $2.5
million city bonds) are ready to open with professional
staff hired and 56 neighborhood paraprofessionals in training. *The Early Childhood Education project ($225,000
supplemental) is already close to its fust year goal of providing concentrated services to 250 two and three year olds.

Community Development Corporations ($1.8 million supplemental) have been formed in all four model neighborhoods under the leadership of the Mortgage Bankers

Association, Chicago Economic Development Corporation,
and Sl3A. *The Increased Streets and Sanitation project
($2.4 million supplemental) has employed 170 of an
anticipated 500 neighborhood residents; special screening
committees are insuring that at lease 50% of these hired are
hard core unemployed.
ATLANTA, GEORGIA
60 out of the 80 projects are already underway in
Atlanta. *An inner-neighborhood bus system connects
the model neighborhood to job sites previously not reachable by public transportation. Subsidy from supplemental
funds make possible a 10¢ fare; the system hooks into the
regular Atlanta transit system. From May 29 to September
30, there were 93,742 riders. *A multi-service center has
been built from the ground up with attractive, prefabricated modules. Employment, education, vocational rehabilitation, and children services already are operating. A
housing advisory center, built the same way, has opened
next door.
EAGLE PASS, TEXAS

School libraries have opened evenings in four

schools. Special and children's sections of the public library
have been expanded. *Nineteen Home Demonstration aides
have completed training to provide counsel in homemaking,
health, nutrition and consumer education. They have already contacted 413 homes and have provided instruction
in 313. *Two minibuses have been ordered and will be in
operation this month, providing free transportation to
elderly, ill, students, and other residents.
DAYTON, OHIO
Projects totalling $1 million, one-third of Dayton's
first year program, are already in operation. *A Model
Cities Housing Development Corporation ($ 108,600) has
been incorporated and has secured approval of an initial
50-unit Section 235 application. 500 units should be underway by June. *The Comprehensive Manpower Center
($460,000 supplemental, $800,000 HEW, OBES, Labor,
and City) is a good example of the extensive negotiations
necessary to launch a project involving several local,
Federal, and State agencies, Model Cities staff and residents. All of these parties were involved in the discussions
about how the local CEP program was to be administered
and refunded. The Comprehensive Center will be the operator under subcontract from the City, but the CEP refunding
package will probably not be completed and approved until
January, and the center will not be able to get underway
until then. Beginning in January, spending will be at a
$225,000 monthly level ($80,000 mo. supplemental) with
200 underemployed to be served by June and 400 by
October.
INVOLVEMENT OF U.S. ARMY CORPS OF
ENGINEERS IN THE MODEL CITIES PROGRAM
Assistant Secretary Floyd H. Hyde recently informed
CDA Directors of possible assistance available to Model
Cities from the U.S. Army Corps of Engineers.
It was pointed out that environmental considerations
have a major impact on the quality of urban life. The Corps
has the potential for materially assisting Model Cities in
their environmental plans and programs. The Corps can
provide technical assistance to CDAs through its engineering consulting expertise. It can also provide direct
action to Model Cities through establishment of a budget
item to undertake a particular public works project. A
District representative of the Corps will be in touch with
each CDA Director in the near future.
EAST ST. LOUIS, ILLINOIS
Thirty projects, totalling $1.5 million of the $ 2.1 million first year entitlement are funded and in operation. The
- 9-
�park complexes and the development of community-based
cultural arts programs.
For example, in Savannah, Georgia, the technical
assistance efforts will be directed toward developing a
mechanism for neighborhood involvement in recreation
planning; community organization is identified as a major
goal. Tampa, Florida is concentrating on the design of new
facilities, with primary attention to the full utilization of
existing and future school facilities. Butte, Montana,
working with a youth board, is concerned with developing a
full range of programs for young people.
N.R.P.A. CORNER
National Recreation and Park Association
Model Cities Technical Assistance Contract
1700 Pennsylvania Avenue, N.W.
Washington, D.C. 20006
(202) 223-3030
-~-
Technical Assistance: Recreation and Culture
The National Recreation and Park Association is administering the contract to provide technical assistance to
selected Model Cities and to help selected Model Cities
resolve special difficulties experienced in program planning
organization and operation in the development of innovative recreation and cultural programs. The contract has two
components: (1) direct consultation and on-site visitation
provided to selected cities by consultants whose expertise is
directly related to the special needs of individual localities
and (2) indirect assistance to all 150 Model Cities through
the preparation and distribution of technical publications
and resource materials.
The National Recreation and Park Association
(NRPA) is a private, non-profit service and educational
organization dedicated to improving the quality of life
through the wise use of human and natural resources and
through the development of relevant and meaningful
recreation and cultural programs for all groups. During the
past few years, increased staff resources and program
efforts have been directed toward urban recreation concerns in an attempt to establish a comprehensive recreation
system in urban communities and to work toward integrating recreation and culture into the total human service
system in urban areas.
Indirect Assistance
In addition to preparing material for the Technical
Bulletin, the NRPA project staff is currently compiling information for general resource publications: a listing of
sources allocating monies for recreation and cultural programs and facilities ; a bibliography of pertinent reference
material, and a listing of audio-visual aids.
On October 9-10, a regional workshop was held in
Atlanta, Georgia. Eighteen of the 23 model cities in Region
III attended the two-day session designed to present new
ideas in programming and facility design and to inform the
cities of available financial and technical assistance
resources.
HUD Expands "Parks- In -Cities" Program
HUD has announced and expanded "parks-in-cities"
program designed to encourage the acquisition and development of parks and recreation areas in low-income neighborhoods. The program involves setting aside up to $15
million fo r the 50-50 matching grants under the open-space
land program for the purchase of land for small and
moderate size parks in blighted city areas. Communities
applying fo r funds should contact the Assistant Regional
Administrator for Metropolitan Development at the
appropriate HUD Regional Office. Communities submitting
letters requesting fu nds before January 1, 1970, will receive
letters of assured financial assistance within one week of
receipt of the request, according to new HUD procedures.
Direct Consultation
To date , NRPA has provided consultant expertise on
13 different service visits. Cities selected to receive assistance
include Toledo and Dayton, Ohio ; Tampa, Florida; Seattle ,
Washington ; Portland, Maine ; Savannah , Georgia; Butte ,
Montana ; and High Point, North Carolina. Additional cities
will be visited in the future as requested by the MCA office
in Washington, D.C.
Representatives from the NRPA project staff, from
the MCA Washington, D.C. office, and specially selected
consultants visit cities to undertake a general survey of the
recreation and culture operations, to assist with tl1e development of a work program fo r future action and to offer
specific help on problems or the development of new
approaches to programmi ng and facil ity design .
Among the concerns identified by the first cities
selecte d are the design and operation of educational camps
and water-based facilities, ways of encouraging and
achieving citizen involvement in planning recreation and
cultural activities, design and use of mini-parks and school-
Special Procedures
l.
- 10 -
Applicants may either file a complete application under the Open Space Land Program or
they may sin1ply file a letter of intention to
submit an application. The letter of intention
should contain the following: (a) Name and
address of applying agency, (b) General neighborhood or location of the site(s) to be
acquired, (c) Estimated total project acreage
and cost including acquisition and development, (d) A commitment to acquire the land
and complete development within one year.
�2.
3.
4.
5.
6.
7.
Upon rece1V1ng an application or letter, the
Assistant Regional Administrator for Metropolitan Development (ARA/MD) may issue a
"letter of assurance" immediately, but in any
event, the Regional Office shall respond to the
applicant within one week.
The letter of assurance will temporarily set
aside necessary funds following which the community has 90 days to complete the necessary
action that can permit formal action on an
application. If the applicant has not taken
action on the assurance after 90 days, the
assurance is cancelled.
Applicants need not specify individual tracts or
parcels for acquisition. Approximations {"four
sites totalling about three acres") will be adequate for the purposes of the letter of
assurance.
Land appraisals need not accompany the application, but appraisals will be required prior to
contract execution. If a community goes ahead
without a concurred-in-price, it does so at its
own risk if the price exceeds HUD's subsequent
price determination.
Only low-income neighborhood projects qualify
for these special procedures. Any neighborhood
with a median family income of $5 ,000 or less
will automatically qualify.
The letter of assurance procedure is effective
until January I, 1970.
TECHNICAL ASSISTANCE CONTRACTS
Consulting firms have made several misrepresentations to Model Cities recently . They have stated that they
are the "approved" technical assistance contractors under
contract with the Deparment of Housing and Urban Development in the various functional areas in which contracts have been le t. Most of the technical assistance
contracts that have been awarded by the Department are
contained in the first issue of the Technical Bulletin on
page eleven . All others are included below. The Planning
and Evaluation technical assistance contract with OSTI was
inadvertently left off the last list of HUD contracts fo r
technical assistance to model cities.
TECHNICAL ASSISTANCE ON INC OME PROGRAMS
Alvin Schoor of the Brandeis University Income
Maintenance Project in Washington, D.C., a project funded
by the Ford Foundation, recently prepared and distributed
technical assistance materials on income maintenance to
model city agencies.
HO USIN G AND URBAN DE VELO PMENT
ACT OF 1969 NEARS PASSAG E
The House and Senate have passed differing versions
of the Housing and Urban Development Act of 1969, and
conferees are scheduled to meet the first week of December
to work out a compromise. As presented to Congress by the
Administration, the original bill was relatively
uncontroversial ; its primary function was to extend HUD
program authorizations due to expire at the end of this
fiscal year. The bill also provided increased federal
contributions for public housing.
Both the House and the Senate, however, added
many new provisions, including greatly liberalized
construction cost limits for federally-assisted housing, elimination of the income limits on the Section 312 rehabilitation loan program, and elimination of the workable
program requirement for certain federally-assisted housing
programs .
The Senate bill contains a new subsidy for very low
income public housing tenants (Brooke amendment) and
authorizes disposal of surplus federal land to local governments on favorable terms for housing sites.
The House bill has two provisions of direct interest to
Model Cities. One requires the HUD Secretary to give a
preference in processing urban renewal applications to
projects which are part of approved Model Cities programs.
The other authorizes the use of IO percent of total Model
Cities grant funds in smaller cities without regard to the
limitation that grants cannot exceed 80 percent of the local
share of other programs employed in the area.
The House bill also contains language which changes
the Neighborhood Development Program (NDP) from a
strict annual process to allow local discretion to proceed on
a two-year basis. A specific percentage of the total urban
renewal authorization is set aside fo r NDP projects. In
addition, an amendment was added on the House floor by
Rep . Lowell Weicker (R-Conn .) which re quires that each
low or moderate income housing unit torn down in an
urban renewal project must be replaced with a new one in
the project area.
EVALUATION CONTR ACTS
Subject
Contractor
CDA Information System . . . . . . . . . . . . Consultee , Inc.
Training and Installation . . . . . . . . . . Transcentury Corp.
Peat, Marwick, Mitchell , & Co.
Training, Research, & Development, Inc.
Fry Consultants
Final action on the bill is expected before the end of
this Congressional session .
- 11 -
�HUD APPROPRIATIONS CLEARED BY CONGRESS
JOB OPPORTUNITIES
The FY 1970 appropriations bill for the Department
of Housing and Urban Development was cleared for the
President's signature November 18, as both the House and
the Senate adopted the conference report which resolved
differences between the versions of the bill each had passed
earlier. The bill includes $575 million for the Model Cities
program. The House agreed to accept the Senate figure of
$1 billion for Urban Renewal, but in return the Senate
acceded to a House figure of $50 million for the rent supplement program. The complete appropriations picture for
HUD is set out in the following chart:
MODEL CITIES DEPUTY DIRECTOR (Project
Coordinator), Fresno, California, $1019-$1239 per mo.,
must have a B.A. or B.S. in public administration,
sociology, education or related field, and at least three
years experience in group work, or in a health, employment, or social service agency, including two years at a
supervisory level. If interested, send applications to the
Model Cities Office, lO ll E. Florence Avenue, Fresno, and
the Fresno City Personnel Dept. For application forms,
write to Fresno City Personnel Department, 1230 N Street,
Fresno, California, 93721, or phone 266-8031, Ext. 311,
Area Code 209. Exam I.D. No. 901-16-1169.
Program (figures in millions.)
Budget
Request
Urban Renewal
Model Cities program
grants
Homeownership (235)
Rental Assistance (236)
Rent Supplements
Public Housing
701 Compre. Planning
Rehabilitation loans
(312)
Title 8, Comm.
Dvlpmt. Tmg.
Neighborhood
Facilities
Open Space
Water & Sewer
Urban Research
Fair Housing
(a)
House
100
nate
250(a)
Final
250(a)
675
100
100
100
473
60
500
80
70
50
473
50
600
100
100
100
473
50
575
90
85
50
473
50
50
45
45
45
8
3
3
3
40
75
135
25
5
40
75
135
25
7
40
75
135
25
6
45
85
135
30
10.5
MODEL CITIES PROGRAM DEVELOPER, Fresno,
California, $742-$902 per mo., B.A. or B.S. in soc., pol.
sci., ed., or related field and at least one y_ear experience in
health, ed., or social agency. If interested, see above for
application procedures. Exam I.D. No. 903-22-1169.
Sen-
250(a)
MODEL CITIES DEPUTY DIRECTOR (Planning),
Fresno, California, $859-$1044 per mo., B.A. or B.S. in
above fields, and three years experience in group work or
with a governmen ta! planning agency, including two years
at a supervisor level. See above for application procedures.
Exam I.D. No. 902-15-1169.
PUBLICATIONS
Adde, Leo, Nine Cities: The Anatomy of Downtown
Renewal, Washington, D.C., 1969.
The results of an intensive investigation and reporting
on the experiences of nine American cities combating
the decline of their downtown districts.
$750 million was appropriated in advance for FY 1970 last
year. The $250 million additional appropriation brings the
total to $1 billion.
Arnstein , George E., "Colleges Can Reach Out to Troubled
Cities with Action, Assistance, Analysis," College and
University Business, September, 1969.
To help colleges become involved in the Model Cities
program, this planning guide offers specific
suggestions as to where higher education can fit into
the process of Model Cities.
A concerted effort by the National League of Cities,
U.S. Conference of Mayors, and National Association of
Housing and Redevelopment Officials to secure Senate
passage of the full $1.6 billion authorized for urban renewal
failed by two votes (34-36) but key Senators committed
themselves to work for a supplemental appropriation bill
before the end of this fiscal year which would include the
additional $600 million authorized to be appropriated for
renewal. This $600 million total includes $187.5 million
expressly authorized for renewal projects in Model Cities.
Holleb, Doris B., Social and Economic Information for
Urban Planning, Chicago, 1969.
A handbook designed to help planners locate
information relevant to urban issues.
This Bulletin is prepared for and in cooperation with
the Model Cities Directors Association.
Paul R. Jones
President
Horace L. Morancie
Erwin France
Secretary
First Vice President
James J. Miller
Donald A. Slater
Parliamentarian
Second Vice President
Prepared by the
MODEL CITI E S SERVIC E C E NTc R
of the
Center for Program Implementation
National League of Cities and the United States Conference of Mayors
�