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RHA 7100.1
WORKABLE PROGRAM
FOR
COMMUNITY IMPROVEMENT
October 1968
A HUD HANDBOOK
PREFACE FOR WORKABLE PROGRAM HANDBOOK
This Handbook sets forth a new approach and revised requirements to
guide localities that are carrying out a Workable Program for Community
Improvement.
It represents the first major revision of the Workable Program proce-
dures since enactment of the statutory provision in 195).
We have several objectives which we hope will be achieved by the re-
vision. One is to respond to the many changes that have taken place
in our urban areas over the years. Another is to ensure that our
requirements for the Workable Program are focused on performance by
localities in dealing with the problem of slums and blight--not just
on compliance with operational procedures. Above all, the purpose is
to give local communities both flexibility and the responsibility to
develop effective programs to achieve the objectives of the statute in
light of the particular nature of problems and conditions existing in
each locality.
The substitution of performance standards for certain formal elements
of the Workable Program does not represent any easing in current sub-
stantive requirements. Nor does the Handbook envision any reduction
in efforts by communities now participating in the program. The intro-
duction of a performance-oriented approach hopefully will result in a
more effective attack on the major problems facing the community.
I am confident that, after more than a decade of experience with the
Workable Program, the Federal-local partnership has the maturity to
operate effectively under the new approach of this Handbook and thereby
we can make more meaningful progress toward overcoming the urgent
problems facing our cities and towns today.
Robert C. Weaver
Secretary
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
FOREWORD
This Handbook sets forth revised policies, requirements, and procedures
for communities required to carry out a Workable Program for Community
Improvement in connection with the use of certain Departmental housing
and renewal programs to help overcome problems of slums and blight.
Workable Program Guides containing illustrative and advisory information
will be issued to supplement this Handbook.
The revised policies and requirements set forth herein are effective
upon issuance of this Handbook. Those communities which already have
submitted or have substantially completed documentation in support of
an application for certification or recertification of a Workable
Program need not revise the material. However, communities may use the
revised forms described in this Handbook immediately. After March 31,
1969, all applications for certification or recertification of a Work-
able Program must be in conformance with the revised policies and
requirements.
The primary objective of the revision is to provide a flexible
and performance-oriented framework within which communities may demon-
strate reasonable continuing progress toward achieving the goals sought
by the statutory requirement for a Workable Program and those estab-
lished by the community to implement them.
The revision also modifies reporting and documentation requirements
and provides new criteria for evaluating community performance.
The revised Workable Program concentrates on four essential areas:
a. The adoption and enforcement of housing, building, and related
codes.
b. The establishment of an effective action-oriented planning
* and programming process.
c. The development of programs to meet low- and moderate-income
housing needs and to meet relocation needs of families,
individuals, and business concerns displaced by governmental
action.
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
d. The involvement of citizens, including poor and minority
groups, in Workable Program activities and in related HUD-
assisted housing and renewal programs.
The intent of this Handbook is to strengthén the Workable Program as a
flexible and meaningful tool to help communities organize and carry out
its community improvement programs. The Handbook envisions no lessen-
ing of effort by communities which have been participating under
previous Workable Program guidelines. Rather, it is anticipated that
communities will make greater progress toward achieving the objectives
of the statute with the increased flexibility provided by the Handbook
to concentrate local efforts and tailor specific needs and problems
facing the community. Applications for certification in accordance
with the requirements of this Handbook which propose a program with an
overall level of effort below that made in the past, will not be
acceptable.
Certifications and recertifications of Workable Programs will be effec-
tive for two years. Field reviews of progress will be made as necessary
by HUD Regional Office staff midway through the certification period to
provide advice and technical assistance. ;
HUD-assisted programs to which the Workable Program applies are listed
in Chapter 1, paragraph 5. A community intending to make application
for financial assistance under any of these programs should become
familiar with the policies and requirements set forth in this Handbook.
An understanding of these policies and requirements will facilitate the
preparation of the application for certification or recertification of
the community's Workable Program and thus help to expedite the process-
ing of applications for financial assistance for specific programs.
10/68 iii
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g9/0T
HUD REGIONAL OFFICES
; REGIONAL ADDRESS AND GENERAL
REGION ADMINISTRATOR TELEPHONE NUMBER JURISDICTIONAL AREA
I Judah Gribetz 26 Federal Plaza, Connecticut, Maine, Massachusetts,
New York, N.Y. 10007 New Hampshire, New York, Rhode
Area Code 212 26)-8068 Tsland, Vermont
TI Warren P. Phelan Widener Bldg., 1339 Chest- Delaware, District of Columbia,
nut St., Philadelphia, Pa. Maryland, New Jersey, Pennsylvania}
19107 Virginia, West Virginia
Area Code 215 597-2560
ee Edward H. Baxter Peachtree-Seventh Bldg., Alabama, Florida, Georgia,
Atlanta, Ga. 30323 Kentucky, Mississippi, North
Area Code Oh 526-5585 Carolina, South Carolina,
“ Tennessee
IV Francis D. Fisher 360 North Michigan Ave., Illinois, Indiana, Iowa, Michigan,
Chicago, Ill. 60601 Minnesota, Nebraska, North Dakota,
Area Code 312 353-5680 Ohio, South Dakota, Wisconsin
Vv WW. Collins Federal Office Bldg., 819 Arkansas, Colorado, Kansas,
Taylor St., Fort Worth, Louisiana, Missouri, New Mexico,
Texas 76102 Oklahoma, Texas
Area Code 817 33-2867
VI Robert B. Pitts 450 Golden Gate Ave., Post Alaska, Arizona, California,
Office Box 36003, San Guam, Hawaii, Idaho, Montana,
Francisco, Calif. 9102 Nevada, Oregon, Utah, Washington,
Area Code 15 556-752 Wyoming
VII Jose E. Febres-Silva
Nea!
Post Office Box 3869, GPO,
San Juan, P.R. 00936
(Dial Long Distance Operator)
767-1515
Puerto Rico and Virgin Islands
T°O00TL VHY
INANAAOUGNI ALINONWOO YOd WVADONd TIAVAYOM
WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
PREFACE
FOREWORD
TABLE OF CONTENTS
HUD REGIONAL OFFICES
CHAPTER 1. SUMMARY OF WORKABLE PROGRAM PURPOSES
AND REQUIREMENT
Statutory Provision
Basic Purpose of Statutory Provision
Summary Of Workable Program Requirements
Local Administrative Requirements
HUD-Assisted Programs for Which Workable Program Is
A Requirement
CHAPTER 2. GUIDELINES FOR EVALUATION OF WORKABLE
PROGRAM APPLICATIONS
General Principles of Administration
Requirements for Application Content
Criteria for Evaluation of Workable Program Appli-
cation
Basis for Determining Acceptability
CHAPTER 3. ADMINISTRATIVE REQUIREMENTS AND PROCE-
DURES FOR WORKABLE PROGRAM CERTIFICATION
Filing of Application for Certification
Governing Body Approval of the Workable Program
Notification of Approval or Disapproval.
Certification Period
Certification Lapse
Technical Assistance to Communities
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
Paragraph
Wi Relationship of Workable Program and Urban Renewal
Requirements
8, Availability of Workable Program as Public Document
9. Guides
CHAPTER 4, CODES AND CODE ENFORCEMENT
lis Statutory Provision
2. Requirements for Code Adoption
5s Rehabilitation Standards
4 Requirements for Code Enforcement
Me Examples of Priority Areas
6. Considerations Related to Code Enforcement
* CHAPTER 5. PLANNING AND PROGRAMMING
1:5 Planning and Programming Objectives
2. Comprehensive Planning Requirements
3% : Programming Requirements
hu, Characteristics of Planning Process
5; Summary
CHAPTER 6. HOUSING AND RELOCATION
is General Provisions
2. Relocation Requirements
3 Housing Requirements
h, Criteria for Evaluation of Applications
CHAPTER 7. CITIZEN INVOLVEMENT
ds Requirements for Citizen Involvement
a
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
Principles and Purposes of Citizen Involvement
Examples of Citizen Involvement Activities
Criteria for Evaluation of Applications
CHAPTER 8. GUIDELINES FOR WORKABLE PROGRAM ADMINIS-
TRATION FOR SMALL COMMUNITIES
General Provisions
Special Provisions
Criteria for Review and Evaluation of Workable
Program Application
CHAPTER 9. GUIDELINES FOR WORKABLE PROGRAM ADMINIS-
TRATION FOR INDIAN RESERVATIONS
General Provisions,
Special Objectives
General Criteria for Review and Evaluation of
Applications
Provision for Code Adoption and Enforcement
Planning Provisions
Housing and Relocation Provisions
Citizen Involvement Provisions
WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 1
CHAPTER 1. SUMMARY OF WORKABLE PROGRAM PURPOSES AND REQUIREMENTS
Le STATUTORY PROVISION. The Housing Act of 1949, as amended, requires
as a condition of certain financial assistance, the following:
". . . a workable program for community improvement (which
shall include an official plan of action, as it exists
from time to time, for effectively dealing with the problem
of urban slums and blight within the community and for the
establishment and preservation of a well-planned community
with well-organized environment for adequate family life)
for utilizing appropriate private and public resources to
eliminate and prevent the development or spread of slums
and urban blight, to encourage needed urban rehabilitation,
to provide for redevelopment of blighted, deteriorated, or
slum areas, or to undertake such of the aforesaid activi-
ties or other feasible community activities as may be
suitably employed to achieve the objectives of such a
program."
The statute also requires the adoption and effective enforcement
of a minimum standards housing code, as described in Chapter 4.
In addition to the Workable Program requirements contained herein,
communities are advised that various HUD-assistance programs may
contain additional separate requirements tailored to meet specific
program needs (e.g. relocation requirements of the urban renewal
program, general planning requirements for water and sewer, or open
space land grants). See Chapter 3, paragraph 7, for further
information.
2. BASIC PURPOSE OF STATUTORY PROVISION. The basic purpose of the
Workable Program requirement is to ensure that communities desir-
ing to utilize funds for renewal and housing programs understand
the array of forces that create slums and blight and are willing
to recognize and take the steps within their power to prevent and
overcome urban blight.
The Workable Program is based on recognition that the Federal and
local relationship is one of partnership in the task, and that
Federal funds for renewal and housing projects cannot, by them-
selves, be effective unless localities exercise the full range of
their powers in community efforts on a sustained and coordinated
basis to the objective of preventing and eradicating slums and
blight.
3. | SUMMARY OF WORKABLE PROGRAM REQUIREMENTS. The specific require-
ments of the Workable Program are based on the statutory objectives
described above and are designed to provide a flexible framework
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 1
for organizing community efforts to eliminate and prevent slums
and blight. The Workable Program calls for progress in the follow- ~
ing four areas:
a. Code Adoption and Enforcement. The adoption of housing, build-
ing, and related codes, and development of an effective code
enforcement program which is at least adequate to deal with
areas having high priority need for enforcement, including both
blighted areas and basically sound but deteriorating neighbor-
hoods, and which is geared toward eventual community-wide
compliance with such codes,
Planning and Programming. The establishment of a continuing
public planning and programming process which develops action ¥*
programs within a comprehensive planning framework for over-
coming the major physical, social, and economic problems
related to the slum and blighted areas of the community, and
for establishing and preserving a well-planned community with
suitable living environment for family life.
Housing and Relocation, The development of a centralized or
coordinated program for assisting in the relocation of all
persons and business concerns displaced by public action in
the community and the development of a proz> m to expand the
supply of housing for low- and moderate-inccuwe families on the
basis of equal opportunity.
Citizen Involvement. The establishment of programs designed
to achieve meaningful involvement of citizens, including poor
and minority groups, in planning and carrying out HUD-assisted
programs related to the Workable Program.
A detailed explanation of the policies and requirements for each
of the above four areas is set forth in subsequent chapters of
this Handbook.
LOCAL ADMINISTRATIVE REQUIREMENTS. In carrying out Workable
Program responsibilities, many different local agencies and offices
will necessarily be involved, together with various public and
private institutions, organizations, and individuals. For example,
building departments, planning agencies, health offices, housing
authorities, urban renewal agencies, neighborhood organizations,
private builders and developers may be involved to provide the
wide range of resources needed to meet Workable Program objectives.
While no specific. administrative structure is required by the
Workable Program, a community will be expected to meet the general
- requirement for establishment of an administrative mechanism
WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 1
responsible to the chief executive for the purpose of providing
leadership, supervision, and coordination of Workable Program
activities.
HUD-ASSISTED PROGRAMS FOR WHICH WORKABLE PROGRAM IS A REQUIREMENT
Qe
Dd.
_Urban Renewal Program
Neighborhood Development Program
Concentrated Code Enforcement Program
Interim Assistance for Blighted Areas
Demolition Grant Program
Community Renewal Program
General Neighborhood Renewal Plan
Rehabilitation loans and grants in urban renewal and concen-
trated code enforcement areas and in other than urban renewal
or concentrated code enforcement areas assisted under the
provision of Sec, 115(a)(2) and Sec. 312(a)(1).
Low-Rent Housing Program, estept for Section 23, Short Term
Leased Housing.
Mortgage insurance under FHA Sec. 220 for housing construction
and rehabilitation in urban renewal project areas.
Mortgage insurance under FHA 221(da)(3) at market or below-
market interest rate projects for low- and moderate- -income
families.
Rent Supplement Projects under Sec. 221(a)(3) for low-income
families, with certain exceptions.
338-597 O- 69-2
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 2
CHAPTER 2. GUIDELINES FOR EVALUATION OF WORKABLE PROGRAM APPLICATIONS
1.
GENERAL PRINCIPLES OF ADMINISTRATION. Workable Program applica-
tions will be evaluated in light of the varying conditions,
backgrounds, problems, and traditions of the particular community.
In view of the difficulty of establishing predetermined standards
of compliance having equal applicability to all communities
throughout the nation, the Department's review and determination
will be guided by the statutory requirements, the adequacy of the
community's proposed effort as measured against the magnitude of
the job to be done, and the constraints of available Federal State,
and local resources. A second major consideration governing the
evaluation of application for recertification will be evidence of
reasonable continuing progress toward meeting the statutory goals
and objectives and those set forth by the community.
REQUIREMENTS FOR APPLIGATION CONTENT. The Workable Program is the
locality's program, and it is the responsibility of the locality
to establish goals, action programs, and timetables for accomplish-
ment in each of the four elements discussed in subsequent chapters.
The goals, action programs, and timetables must be approved by the
Department, except where otherwise indicated in Chapter 5, para-
graph 3. Because the emphasis is on the locality's responsibility
to develop its own program tailored to its own needs and abilities
rather than on complying with specific Departmental requirements,
the community's application must contain sufficient evidence and
detail to permit an objective basis for review and evaluation.
Therefore, the application must clearly and specifically describe
what the community intends to do during the next certification
period in each of the four Workable Program elements. When apply-
ing for recertification, the application must also clearly describe
what steps the community took in the last period, in order to
provide a basis for measurement of the community's continuing
progress toward meeting the agreed-upon goals and objectives. In
developing its "work program" in each of the four elements for the
next certification period, the community must also show how the
proposed activities are related to an analysis of the problems or
needs, and to longer-range targets for accomplishment. For example ,
in developing a program to meet the requirement of Chapter 6 to
expand the supply of housing for low- and moderate-income families,
the application should show the relationship of its proposed
program and timetables to an analysis of needs in the community
and to its longer-range goals or targets for expansion of such
supply. The questions included in Application Form 1081 are
designed to elicit the information and evidence required to provide
a reasonable basis for approving or disapproving the community's
Workable Program Application.
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 2
3.
CRITERIA FOR EVALUATION OF WORKABLE PROGRAM APPLICATION. In re-
viewing a community's application for certification or recertifi-
cation of a Workable Program, the Department's assessment will be
based on the following factors:
a. Problem Analysis. Adequacy of the community's analysis of the
problems and needs where required by the Workable Program
elements.
b. Long-Range Goals. Adequacy and reasonableness of the long-
range goals and targets for accomplishment proposed by the
community for overcoming such problems.
Action Programs. Adequacy of the specific actions and time-
tables proposed to be taken by the community during the next
period of certification to deal with the problems identified,
in light of available resources and the magnitude of the
problems.
d. Progress. Demonstration of reasonable continuing progress
toward meeting goals and objectives specified by the community.
BASIS FOR DETERMINING ACCEPTABILITY, The acceptability of a com-
munity's initial application for certification will be based on
the adequacy of the problem or need analysis in each of the
elements, the extent to which longer-range goals or targets have
been identified in relation to need, and the adequacy of the pro-
posed action programs, in light of both need and available
resources. The acceptability of an application for recertification
will be based on the performance of the community in meeting the
goals, targets, and timetables agreed to at the last certification,
as well as on the extent to which the proposed level of effort
represents continuing progress from the last period toward meeting
its longer-range targets. When unexpected developments or changed
conditions prevent a community from meeting its agreed-to objec-
tives and timetables, the application for recertification must
include a detailed explanation of the reasons.
WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CRAPTER 3
CHAPTER 3. ADMINISTRATIVE REQUIREMENTS AND PROCEDURES
FOR WORKABLE PROGRAM CERTIFICATION
FILING OF APPLICATION FOR CERTIFICATION, Form HUD-1081 is to be
used by the community to apply for certification or recertifica-
tion of its Workable Program. Careful attention to the prepara-
tion of format and content will obviate the need for correspondence
with the community and thus help to expedite the review and
evaluation of the application and its approval.
An original and three copies of Form HUD-1081 are to be submitted
to the appropriate HUD Regional Office. An application for
recertification should be submitted at least 60 days prior to
expiration of the community's current Workable Program certifica-
tion.
A community desiring to discuss Workable Program policies and
requirements or to obtain assistance and guidance in the prepara-
tion of the required Form 1081 should communicate with the HUD
Regional Office.
GOVERNING BODY APPROVAL OF THE WORKABLE PROGRAM. Before being
submitted to the Regional Office, the application for certifica-
tion and recertification on Form HUD-1081 must be approved by the
executive head and the governing body of the community.
NOTIFICATION OF APPROVAL OR DISAPPROVAL. The HUD Regional Office
will advise the applicant community of approval or disapproval of
the Workable Program application for certification.
a. Reasons for Disapproval or Conditional Approval. Applications
may be disapproved or conditionally approved for either of two
reasons listed below; an explanation of the basis for such
action will be provided to the community.
(1) Failure by the community to carry out the plan of action
and timetable it proposed for the last certification
period. In the event of disapproval or conditional
approval for this reason, the community will be advised
of the actions it must take to carry out the plans or
steps it initially proposed but did not take and did not
provide justification for not taking.
(2) Inadequacy of plans, programs, and timetables: proposed by
the community for the next certification period. In the
event of disapproval or conditional approval for this
reason, the community will be informed of the nature of
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 3
the inadequacy of its proposed plans and programs, and
will be requested to submit additional information needed
to remedy such inadequacies.
b. Time Limit. Applications that are conditionally approved will
provide a reasonable, definite time limit for accomplishment
of required actions. In the event of a conditional approval,
applications for financial assistance under the applicable HUD
programs will be processed, but final approvals will be with-
held until the Workable Program is fully approved. (Once a
community's application is approved, no further requirements
will be imposed during the period of certification. )
4, CERTIFICATION PERIOD. All Workable Program certifications are for
a two-year period. If certification of a Workable Program has
expired, the execution of contracts for assistance is precluded
with respect to the applicable programs listed in Chapter l,
paragraph 5. Certification is deemed not to expire, however, but
rather to continue in effect for the following purposes:
a. To provide Federal assistance under Title I of the Housing Act
of 1949 for any urban project in the locality with respect to
which a loan and grant contract is executed prior to the ex-
piration date. sem
b. To provide Federal assistance under the United States Housing
Act of 1937 for any low-rent public housing being undertaken
by the locality with respect to which a contract for annual
contributions or capital grant is executed prior to the ex-
piration date.
c. To provide mortgage and home improvement loan insurance under
Section 220 of the National Housing Act with respect to prop-
erty in the locality situated in:
(1) The area of any urban renewal project for which a loan and
grant contract is executed prior to the expiration date,
or
(2) Any urban renewal area not involving Federal aid under
Title I of the Housing Act of 1949 respecting which prior
to the expiration date the Secretary of Housing and Urban
Development has certified that he has approved the urban
renewal plan for the area, that such plan conforms to the
general plan for the locality as a whole, and that there
exist the necessary authority and financial capacity to
ensure the completion of such urban renewal plan.
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WORKABLE PROGRAM FOR COMMUNITY JMFROVEMENT
RHA 7100.1
CHAPTER 3
a. To provide mortgage insurance under Section 221(d)(3) of the
National Housing Act with respect to property in the locality
for which a pre-application analysis has been made by the
Federal Housing Administration and it has agreed in writing
to accept a formal application prior to the expiration date,
or located in the area of any urban renewal project for which
a loan and grant contract is executed prior to the expiration
date.
CERTIFICATION LAPSE, Where a Workable Program certification has
expired and a lapse has occurred, the community will be required
to show the progress made in meeting Workable Program requirements
not only during the period in which the Workable Program was in
effect, but also during the lapsed period. Thus, it is important
that a community anticipate the expiration date and initiate the
actions necessary to prepare an application for recertification
sufficiently in advance of this dat so that lapse may be avoided.
TECHNICAL ASSISTANCE TO COMMUNITIES. In accordance with Section
101(d) of the Housing Act of 1949, as amended, the Department will
endeavor to the maximum extent possible, to assist communities in
meeting their Workable Program objectives. Field reviews of
progress will be made as necessary midway through the period of
certification and Regional Office staff will be available to the
extent resources permit to provide consultation, advice, and
technical assistance.
RELATIONSHIP OF WORKABLE PROGRAM AND URBAN RENEWAL REQUIREMENTS,
Communities intending to apply for urban renewal assistance should
be aware of the following statutory requirements:
a. No loan or grant contract may be entered into for an urban
renewal project unless the Workable Program "is of sufficient
scope and content to furnish a basis for evaluation of the need
for the urban renewal project, and such project is in accord
with the program."
The plan for an urban renewal project must "conform to the
general plan of the locality as a whole and to the Workable
Program . .« «
In entering into any contract for advances for surveys, plans,
and other preliminary urban renewal work, the Secretary must
“sive consideration to the extent to which appropriate local
public bodies have undertaken positive programs (through the
adoption, modernization, administration, and enforcement of
housing, zoning, building and other local laws, codes, and
regulations . . .) for (1) preventing the spread or recurrence
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 3
in the community of slums and blighted areas, and (2) encour-
aging housing cost reductions through the use of appropriate
new materials, techniques, and methods in land and residential
planning, design, and construction, the increase of efficiency
in residential construction, and the elimination of restric-
tive practices which unnecessarily increase housing costs."
HUD will not authorize a Federal aid contract for a Neighbor-
hood Development Program (NDP) unless there is in existence a
certified Workable Program which is of sufficient scope and
content to furnish a basis for evaluation of the need for the
proposed NDP activities and such activities are in accord with
the Workable Program.
Communities are advised that because of the above statutory pro-
visions, requirements for urban renewal assistance may differ from
those necessary for Workable Program certification purposes in the
following ways:
a.
Evaluation of Urban Renewal Need. With respect to subpara-
graphs a. and d., above, a community intending to apply for
urban renewal or NDP assistance should ensure that the studies
undertaken in connection with the planning and programming re-
quirement described in Chapter, 5 are of sufficient scope and
quality to provide a basis for evaluation of the need for the
urban renewal project or NDP activities. In general, the
studies carried out under the Workable Program should be
adequate to determine that the area is sufficiently blighted
or deteriorated to qualify for an urban renewal or NDP program,
Information should be included to illustrate both building and
environmental deficiencies, such as overcrowded conditions,
excessive densities, and so forth. For further information on
urban renewal eligibility requirements see RHA 7205.1 of the
Urban Renewal Handbook, Chapter 1, General Eligibility Require-
ments. A community may, if it so wishes, supplement its'
Workable Program submission with other related studies having a
bearing, such as a Community Renewal Program, General Neighbor-
hood Renewal Program, or other similar studies.
Renewal Plans. With respect to b., above, the Urban Renewal
Handbook sets forth the following minimum elements of a general
plan: land use plan, thoroughfare plan, community facilities
plan, public improvements program, zoning ordinance and map and
subdivision regulations. The preparation of such pians (except
for a zoning ordinance or other comparable memo for guiding
land usage) is not a prerequisite to the approval of the
Workable Program, though many communities may find the prepara-
of them helpful in the development of general plans to guide
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WORKABLE PROGRAM FOR COMMUNITY IMPROVEMENT
RHA 7100.1
CHAPTER 3
community growth and development, which is a Workable Program
requirement described in Chapter 5. In addition, for purposes
of approving specific urban renewal projects, a greater degree
of planning completion may be required than would be necessary
for Workable Program purposes, especially in smaller communi-
ties and others seeking initial certification or recertifica-
tion.
c. Codes. With respect to c., above, a community intending to
apply for urban renewal assistance is advised that approval of
the housing, building, and other code requirements of the
Workable Program will constitute compliance for urban renewal
purposes with Section 101(a) of the Housing Act of 1949, and
no additional information will be required for that purpose.
AVAILABILITY OF WORKABLE PROGRAM AS PUBLIC DOCUMENT. Since the
Workable Program is a public document, it must be made available
for public perusal and examination. At their request, copies
should be made available by the locality to citizen groups and
organizations which should be encouraged to participate in the
development and implementation of the Workable Program.
GUIDES. Supplementary guides will be issued to provide communities
with advice and illustrations in connection with carrying out the
Workable Program, including description of the scope and content
of comprehensive planning programs, ways of organizing and carrying
out effective relocation and code enforcement programs, and means
for encouraging and developing citizen involvement. Pending issu-
ance of the Guides, questions and requests for technical assistance
should be directed to the Regional Office.
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WORKABLE PROGRAM FOR COMMUNITY [MPROVEMEN
RHA 7100.1
CHAPTER 7
CHAPTER 7. CITIZEN INVOLVEMENT
REQUIREMENTS FOR CITIZEN INVOLVEMENT, A guiding principle of De-
partmental policy is to insure that citizens have the opportunity
to participate in policies and programs which affect their welfare.
Therefore, the Workable Program requires clear evidence that the
community provides opportunities for citizens, including those who
are poor and members of minority groups, to participate in all
HUD assisted programs for which a Workable Program is a require-
ment, and in the community's plan to expand the supply of low- and
moderate-income housing. (See Chapter 1, paragraph 5 for list of
applicable HUD programs.) The community will also be expected to
show what progress has been made during each certification period
to achieve an adequate and effective degree of citizen involvement.
PRINCIPLES AND PURPOSES OF CITIZEN INVOLVEMENT, The growing com-
plexity of urban development and government organization make it
essential that widespread opportunities for citizen involvement
be created, including opportunities for poor and minority groups,
for many reasons. In some cases, existing local institutions
seem unable to identify the serious problems of many citizens, as
the citizens define them. In turn, the people may feel cut off
from their public representatives, and lack understanding of what
government is doing to and for them. At the same time, traditional
acts of participation--voting, attendance at meetings, letters to
Congressmen--are frequently ineffective in dealing with the immedi-
ate problems raised by increasingly large and complex programs
having direct impact on peoples' lives. For these reasons, new
forms of collaborative relationships between citizens and govern-
ment, new means for participation in the decision-making process,
need to be developed. Recognizing the need for experimentation and
innovation, the Workable Program does not contain any specific re-
quirements for the form that citizen participation must take. The
choice of mechanisms depends upon the needs of the particular com-
munity and the structure of the local government. However, there
are certain principles and objectives which should underlie the
community's effort. One is that the community's responsibility
does not end with the establishment of a particular mechanism or |.
set of mechanisms. The Workable Program requires continuing effort
on the part of the community to improve and expand the opportuni-
ties for creative forms of participation and collaboration that
both ensure representation by poor and minority groups. as well as
enable government to take effective, purposeful, and expert action
to deal with the problems and needs facing the community, It is
essential that the participation be satisfying, rewarding, and not
frustrating if it is to achieve the basic objective of creating
and sustaining a voluntary union and mutual trust between govern-
and its citizens.
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3. EXAMPLES OF CITIZEN INVOLVEMENT ACTIVITIES, It is important that
the community develop specific plans for achieving and maintaining
adequate and effective citizen involvement in the programs covered.
A community may establish a new community-wide advisory committee
embracing all major interests» including the poor and members of
minority groups or may create several new special-purpose groups,
or may make better utilization of existing organizations. Communi-
ties which already have established effective citizen advisory
committees for Workable Program purposes are encouraged to retain
them and improve their effectiveness. Communities participating
% in the Model Cities program or other programs involving a high
degree of citizen participation are encouraged to coordinate the
citizen involvement activities under the Workable Program with the
citizen participation requirements of these programs, where
applicable. In addition to establishing appropriate organiza-
tional means for citizen involvement, a community may wish to
take such steps as the following in order- to further the objectives
of this element:
a. The development of specific functions for citizen committees,
such as having them hold public hearings, prepare comments on
Workable Program applications, evaluate project plans, conduct
interviews and surveys of neighborhood residents' views, etc.
b. The development of specific methods by which the community can
establish a basis for insuring there will be fair and reason-
able representativeness of advisory committees participating
in the Workable Program. For example, one method by which to
compose a community-wide advisory committee might be to choose
representatives in equal proportions, from private neighborhood
groups, government program-connected advisory groups, and civic
groups.
; 4
c. The establishment of a planning group to help develop new ideas
and techniques for generating greater involvement among poor
and disadvantaged groups.
d. The provision of funds and technical assistance to neighborhood
and other advisory groups so they may become better informed
and equipped to deal with complex redevelopment problems.
e. The assignment of specific activities in HUD-assisted projects
to designated neighborhood groups, such as evaluating site and
design considerations, establishing information centers, and
making recommendations with respect to housing project regula-
tions. ;
4, CRITERIA FOR EVALUATION OF APPLICATIONS, To provide a basis for
evaluating the citizen involvement element of Workable Program
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RHA 7100. YJ
CHAPTER 7
applications and for determining the adequacy of such involvement,
the community will be expected to submit the following kinds of
information:
a. A description of the arrangements or working relationships
established to provide citizen groups with opportunities for
access to the decision-making process with respect to the re-
lated HUD-assisted projects related to the Workable Program.
A description of the nature and range of issues with which the
participating groups and individuals have dealt, the recom-
mendations subsequently made, and the general results and
accomplishments derived from such involvement.
A description of the specific steps the community took in the
preceding period and proposes to take in the next certification
period to achieve or maintain an adequate and effective degree
of citizen involvement, including plans for providing suffi-
cient information, technical assistance, and access to de-
cision-making.