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Author Index
Italic page numbers refer to listing in Bibliography.
Abrams, C., Un, 205 Almond, G., 51n, 66n,
134n, 205
Ascher, C., 51n, 68n, 103n, 109n, 205
Ash, E., 29n, 32
Bailey, S., 4n, 205
Banfield, E., In, 12n, 208 Bellin, S., In, 205 Bernstein, J., 35n, 205 Blau, P., 66n, 205 Brymar, R., 102n, 210 Bunte, D., 35n, 205
Carr, G., 12n, 207 Coalition for Basic Human
Needs, 179, 179n Coleman, R., In, 126n, 206 Connelly, J., 35n, 205 Cramond, R. D., 75n Cullingworth, J. B., 20n,
4ln, 206
de Leeuw, F., In, 206 Derthick, M., l53n, 154n,
195, 195n, 206 Deutscher, I., 4n, 123n,
206 Downs, A., 7ln, 206
Farris, B., 102n, 210 Finn, D., 140n, 141n
Fischer, R., l3n, 206 Forrest, R., 202n Freedman, L., Un, 206 Friedman, L., 3n, 9n, Un,
13n, 14n, 194, 194n, 206
Galm, S., 94n, lOIn, 206
Genung, G., Jr., l08n, 206 Gessmer, E., 177n, 187n,
207 Glaser, B., A., 103n, 133n,
207 Goldfeld, A., 114n, 207
Hamlar, P., 155n, 207 Handler, J., 3n, 5n, 46n,
80n, 91n, 197n, 203, 203n,207
Hartman, C., In, 12n, 33n, 34n, U4n, 126n, 136n, 152n, 207
Harvey, J., 166n Hemingway, H., 143n Hileman, M., 180n Hipshman, M., 13n, 15n,
24n, U4n, 207 Hollingsworth, E., 46n,
80n, 9ln, 207 Howitt, A., 12n, 207 Huttman, E., 4n, 207
Ikeda, K., 2n, 208
213
Jones, K., In Joint Center for Urban
Studies of MIT and Harvard, 40n, 207
Kahn, R., 50n, 207 Kaiser Committee Report,
151 Katz, D., 50n, 207 Kaufman, H., 139n, 207 Kohler, J., 32n Kreisberg, L., In, 205
Lasswell, H., 51n, 66n, 134n, 205
Lazin, F., 5n, 26n, 152n, 207
Lebeaux, C., 92, 92n, 211 Lefcoe, G., 155n, 208 LeGates, R., 141n, 142n,
208 Lempert, R., 2n, 208 Levi, M., U4n, 136n, 207 Levin, J., 51n, 66n, 208 Levin, S., 89n, 208 Lewin, K., 123n Lipsky, M., 4n, 7n, 48n,
95n, 133n, 194, 194n, 199n, 208
Loux, S., 198n Lowi, T., 195, 195n, 208 Luttrell, J., 25n, 208
214 Author Index
MacDonnell, P., 16n, 18, Popper, Lewis, 21n, 72n, Strauss, A., 103n, 133n, 33n, li9n, 144n, 208 135n,209 207
McEntire, D., 26n, 208 Pressman, J., 4n, 209 Struyk, R. J., In, 210 McGuire, M., 31n, 208 Prottas, J., l27n, 209 Mayer, A., In, 208 Pynoos, J., 152n Taube, G., 51n, 66n, 210 Mayhew, L., 2n, 208 Mazmanian, D., 4n, lOn,
Rabinowitz, F., 4n, 210 U. S. Bureau of the Cen-
208 sus, 39n, 210 Meehan, E. J., In, 191n,
Rein, M., 4n, 210 U. S. Department of Hous-
208 Ricker, W., 25n, 210
ing and Urban Meyerson, M., In, l2n, 208 Development (HUD), Mogey, J., 41n, 68n, 77n, Sabatier, P., 4n, lOn, 208 45n, 54, 54n, 141,
209 Sadacca, R., 198n 142n, 148n, 149, 149n, Mollenkopf, J., liOn, 209 Schafer, R., 152n 150n, 210, 211 Moore, W., 106n, 209 Scharfenberg, K., 178n, Morris, R. N., 4ln, 68n, 181n Van Duesen, R., 14ln, 211
77n,209 Schermer,. G. and Associ-Mosher, E., 4n, 205 ates, In Weaver, R., 28, 28n, 29n, Mulvihill, J., In, 209 Scholnick, M., l20n, 210 3On,211 Murie, A., 202n Scobie, R., l2n, 16n, 18n, White, P., 89n, 208
National Committee 25ri, 54n, l25n, 210 Whittlesey, R., 158n, 160n,
Sheehan, A., 167n 178n,211 Against Discrimination Sheehan, T., 90n Wilensky, H., 92, 92n, 211 in Housing, 27n, 28, Shefter, M., 91n,I04n, Wildavsky, A., 4n, 209 28n,209 105n, 106n, 210 Willis, D., 25n, 151n, 211
Nordlinger, E., 91n Silverman, A., 40n, 210 Wilson, J. Q., 7ln, 135n, Neeno, M., 108n, 209 Simon, H., 52n, 210 211
O'Reilly, A., 30n Sjoberg, G., 102n, 210 Wirt, F., 4n, 26n, 211 Solomon, A., 91n, 210
Peattie, L., 189n, 209 Spence, L. H., 173n, 175 Yin, R., 188, 188n Philadelphia Housing Au- 176, 176n, 210
thority, 42n, 209 Starr, R., 5n, 191n, 210 Zald, Mayer, liOn, 211
Subject Index
Aid to Families with Dependent Children
tenant eligibility and, 45 Advocacy
assignment and, 70 civil rights, and outcomes, 190-191 political patronage, 12-14 staff and, 76, 129, 188 squatters, 192 third party sponsors, 89-111 See also Patronage
Age project assignment and, 58-60
American Veterans Committee reform and, 17-18
Applicants shifts in, 2
Applicant preference, 55-60 racial integration and, 22, 55-58, 60-
62 Application interview, 44-45 Ash, Ellis, 18-22, 24, 29, 34 Assignment
advocacy and, 70 exceptions and, 83-87 federal intervention, 139-155 first come, first serve, 43-44 managers and, 142-143 Master's office recommendations, 159-
160 political patronage and, 13 procedures, origins of, 37 rules and, 203-204 staff discretion and, 67-88 tenant empowerment, 201-202
215
Assignment (Cant.) Tenant Selection and Assignment
Plan, 165-167, 169-171 See also Discretion: Tenant selection
Assignment Choice Plan, 151-152 Avoiders, 80-83
Beach Street project, 170 Bernstein, Julins, 34 Boston City Council, 146-147 Boston Housing Authority
breakdown of rule system, 37-66 centralization, 118-121 con trol of, 12 emergence of rules, 11-36 evaluation of, 150-153 federal intervention, 139-155 HUD audits of, 141-143, 148-150 leadership and reforms, 33-35 population characteristics, 54-55 third-party influence, 89-111
Boston Housing Authority Board Administration, 16, 21, 33, 77, 91, 95, 109, 166, 174, 180, 184
powers of, 12-18 Boston Housing Authority Managers. See
Managers Boston Housing Authority projects
age of assignees and, 58-60 application preferences, 55-60 1-2-3 projects, 55-56 profiles, 124-134 project-leyel discretion, 113-138 race of assignees and, 57-58 variation in, 54-55
216
Boston Housing Authority staff circumvention ofl-2-3 plan, 62-65 discretion, 67-70 morale of, 49-50 norms of, 8 See also Managers
Boston Housing Court discipline of managers, 199 interventon by, 157-185 political patronage and, 189
Boston Redevelopment Authority, 18 relocation division advocacy, 95
Brighton project racial integration of, 173-174
Bromley-Heath development, 200-201 Brown v. Board of Education of Topeka,
25-26 Bunte, Doris, 34 Bureaucrats. See Street-level Bureaucrats Bureaucratic discretion. See Discretion Bureaucratic goals, 71n Bureaucratic types
discretion and, 70-87
Catholic Church racial integration and, 23
Centralization, 118-121, 155, 183, 198 Chardon Street missionary, 131 Charlestown project
racial integration of, 15, 176 Chicago Housing Authority, 13
assignment procedures, 152 Citizens Housing and Planning Associa-
tion study, 33-34 Civil Rights Act of 1964, 27 Civil Rights Division, 173 Client empowerment. See Tenant
empowerment Coalition for Basic Human Needs, 179 Columbia Point project, 90, 136, 138, 168
applicaton for, 163 influence of situation at, 131-134 profile, 124-129 racial integration of, 15
Community Development Block Grants, 168-169
Congress on Racial Equality (CORE), 16n,29n
NAACP-CORE agreement, 140 reform and, 16, 18-19
Subject Index
D Street project racial integration of, 23
Department of Housing and Urban Development (HUD), 45n, 52n, 107, 161-162,196
desegregation and, 28-33 monitoring of BHA, 139-150 1-2-3 plan, 29-33 powers of, 139, 153-155 reform and, 19-25
Desegregation. See Racial integration Detroit Housing Commission
assignment procedures of, 155n Discretion
definition and uses of, 5-6 managerial,163-164 outcomes of, 82-87, 203-204 project-level, 113-138 race and, 83-87 regulatory justice and, 3-4, 194-195 rule interpretation, 196-197 situations as a determinant of, 123-134 staff types and, 70-87 street -level bureaucrats and, 7 third-party sponsors and, 95
Division of Civil Rights desegregation and, 28
Division oflabor applicant processing and, 47
East Boston project racial integration of, 173-174
Economic integration, 178-180 Efficiency, 160, 163-164, 169-171, 187,
189 Elderly
assignment of, 58-60 Columbia Point project, in, 126 discretion and assignment of, 85-87 Mary Ellen McCormick project, in,
125 political advocacy for, 104
Emergency status, 37, 48, 73, 95-96, 160
discretion in determining, 68-69 HUD audit of, 148-50 regulatory justice and, 195
English council housing advocacy in, 77n applicant scoring procedure, 41n
Subject Index
English council housing (Cant.) determinants of need, 68n tenant selection in, 20n
Equity, 194, 197 assignment and, 2 reform and, 3-5
Exchange, 96-97
Federal-local relationships, 195-197 clarity of rules and, 6-7
Federal government clarity of rules, 195-197 housing authority subsidies, 107-108 intervention of, 25-35, 139-155 regulations and exceptions, 1-2-3
rule, 84-85 Federalism
implications of, for racism, 25n new, 141
First come, first serve rule assignment by, 43-44 development of, 29 discretion and, 67-87 exceptions to, 63-64, 83-87 HUD evaluation of, 150-153 implementation of, 37, 196 managers and, 199 objectivity of, 42 outcomes of, 65-66, 194-197 public hearing on, 146-147 racial segregation and, 31-32 regulatory justice and, 194-195 theoretical assumptions, 187 vacancy reporting and, 49
Flynn, Raymond, 182-183 Ford Foundation study, 9ln
Garrity, Paul (Chief Justice of Housing Court), 157-158, 165-167, 182
Gautreaux v. Chicago Housing Authority, 152
Home visits, 48, 172 Housing Act of 1937, 11, 29 Housing Act ofl949, 14-15 Housing Assistance Administration
desegregation and, 27-28 response to 1-2-3 plan, 30-31
Housing and Community Development Act ofl974, 177-178
217
Housing and Home Finance Agency, 27 Housing Integration Department
discretion and, 95-96 Housing need
eligibility by, 37-42 racial integration versus, 192-194 See also Priority system
Housing-need criterion. See Priority system
Hyde Park project racial integration of, 173-174
Income mixing, 178-180 Integration. See Economic integration;
Racial integration
Jamaica Plain project racial integration of, 15, 23
Joint Center for Urban Studies, 40n Jones, Ralph, 91
Kaiser Committee Report, 151-152 Kennedy, John F., 26
League of Women Voters BHA report, 33-34
Lenox Street project racial integration of, 15
Managers background, 113-115 control mechanisms of, 115-123 court discipline of, 199 discretion of, 113-138, 163-164 HUD audits and, 141-143 power of, 198-200 racial integration and, 22-23, 199 resistance to reform, 121-123 styles of, 134-137
Marketing public hOUSing, 162-163, 192-193
Mary Ellen McCormick project influence of situation at, 126-131 profile of, 124-125 racial integration of, 23
Massachusetts Advisory Committee racial integration and, 23-24
Massachusetts Coalition for the Homeless, 179-180
218
Massachusetts Commission Against Discrimination (MCAD), 161
reform and, 16-17 Massachusetts Department of Communi
ty Affairs, 157-158 Master's office
intervention of, 158-167 tenant selection recommendations,
159-60 Mission Hill Project
court inspection of, 157-158 racial integration, 15, 24, 177
Monitoring effectiveness of, 9-10 implications of, 198-200
Monitoring, HUD audits, 141-143, 148-150 BHA feedback, 143-146 written reports, 140-141
National Association for the Advancement of Colored People (NAACP)
NAACP-core agreement, 140 reform and, 16, 18-19
National Association of Housing and Redevelopment
response to 1-2-3 plan, 29, 31-32 National Center for Housing and Man
agement, 200 National Committee Against Discrimina
tion in Housing, 27-28 Need
eligibility by, 37-42 racial integration versus, 192-194 See also Priority system
New Federalism, 141 New York City Housing Authority
procedures of, 51n
Older adults, See Elderly Old Colony project
racial integration of, 23 Old Harbor Village, 11
See also Mary Ellen McCormick project
1-2-3 Plan, 28, 29, 53, 140-155 BHA staff circumvention, 62-65 client rejection of, 53-65 exceptions to, 63-64, 83-87
1-2-3 Plan (Cont.) failure of, 53-65
Subject Index
goals undermined, 60-62 HUD evaluation of, 150-153 outcomes of, 187 public hearing on, 146-147 reformers evaluation of, 144-146 response to, 28-33 traditionalists and, 73-74
Orchard Park project racial integration of, 15
Orient Heights project racial integration of, 176-177
Patronage cost of, 13 court intervention and, 189 locally-originated rules and, 12-14 outcomes of, 188 See also Advocacy
Perez v. Boston Housing Authority, 158n, 160, 161n, 167n, 170n
Philadelphia Housing Authority tenant selection by, 42n
Policy implementation theory of, 7
Political patronage. See Advocacy; Patronage
Politicians advocacy of, 89, 101-11 managers and, 122 referrals by, 92 service to BHA, 94-95
Pool cases, 116-118, 120, 130, 143, 155, 163
President's Committee on Equal Opportunity in Housing, 26-35
Priority system crisis situations and, 47-48 failure of, 50-53 HUD audit of, 149 information gathering requirements,
44-47 managers and, 142-143 measurement problems, 37-42 reform of, 20-21 working conditions under, 42-53 See also Housing need
Privatization, 202-203
Subject Index
Pruitt Igoe project, 191 Public housing
bureaucracy and, 1-10 federal popularity of, 196 financial problems of, 190-192 marketing, 162-163 privatization of, 202-203 See also Boston Housing Authority
Public Housing Administration, 196 Public Works Administration
housing projects and, 11
Race assignment type and, 56-58 1-2-3 plan and, 83-87 waiting lists and, 193-194
Racial integration applicant preferences and, 55-58, 60-
62 determinants of, 2 division of Civil Rights and, 28 early reform, 16-18 federal rules and, 25-35, 196 highway dislocation and, 2 Housing Act of 1949, 14-15, Housing Integration Department, 95-
96 housing the neediest versus, 192-194 HUD staff response, 30n local rules and, 18-25 managers and, 22-23, 199 Master's office report on, 160-162 Nixon Administration and, 152-153 1-2-3 plan, 29, 53-65 receivership and, 173-177 urban renewal and, 2
Racial segregation determinants of, 2 middle years of, 14-16 See also Racial integration
Receivership end of, 182-183 fair housing under, 173-177 implementation outcomes, 189 income mixing and, 178-180 objectives of, 167-169 screening, 171-173 tenant empowerment, 180-182
Reconstruction strategy, 167-169
Red Cross advocacy of, 89, 95
Reform barriers to, 187-188 centralization, 118-l21 conditions for, 188-190 court-initiated, 157-185 equity and responsiveness, 3-5 financial problems and, 190-192 BHA leadership and, 33-35 Catholic Church and, 23 managerial resistance to, l21-l23 Master's office and, 158-167 outside intervention and, 9-10 receivership, 167-183
Reformers, 74-78 evaluation by, 143-144 lobbying by, 34n managers and, 115 managers as, 136-137 political influence and, 107-109 strategies of, 2
Regulatory justice, 194-195 definition of, 4 Weberian ideal and, 3-4, 194-195
Responsiveness, 194, 197 reform and, 3-5
Right of Appeal tenant selection and, 2-3
Roxbury project racial integration of, 15
Rules breakdown of system, 37-66 clarity of, 195-197 emergence of, 11-36
219
federal-local relationships and, 6-7, 195-197
locally originated, l2-25 nationally originated, 25-35, 195-197 1-2-3 plan, 29 promotion of adherence, 203-204
Rule implementation factors influencing, 5-6, 203-204 regulatory justice and, 194-195
Scobie, Richard, 25, 54, l24, l26 Scottish public hOUSing, 75n Screening
Court initiated, 164-165
220
Screening (Cont.) project-level discretion and, 114 receivership and, 171-173 reformers and, 191
Segregation. See Racial segregation Social agencies
advocacy of, 101-111 service to BHA, 94
Socio-economic conditions implications for housing, 190-191 tenant selection and, 190-194 waiting lists and, 193-194
South End project racial integration of, 15
Spence, Lewis (Harry), 167-183 Squatting, 192 Statutory income limits, 12-13 St. Louis Housing Authority, 179 Street-level bureaucrats
discretion and, 7 power of, 198-200 See also Managers
Survivalists managers and, 122 political influence on, 107
Sweat equity, 192
Tenant Association Council (TAC) reform and, 16-17
Tenant empowerment, 180-182 outcomes, 189, 200-202 privatization and, 202-203
Tenant Management Corporation, 200-202
Tenants Policy Committee, 120-121 Tenant selection
Department of Tenant and Communi-ty Relations, 19-25
English council housing, in, 20n federal intervention, 139-155 Master's office recommendations, 159-
160 1-2-3 plan, 29-33 priorities, reform of, 20-21 priority system, 37-52 racial segregation and, 14-16 screening, 12-l4 socia-economic conditions and, 190-
194
Subject Index
Tenant selection (Cont.) tenant empowerment, 180-182, 201-
202 See also Assignment; 1-2-3 plan; Pri
ority system Tenant Selection and Assignment Plan
(TSAP) court initiation of, 165-167 management reorganization and, 169-
m Tenant Selection Department, 37
staff, 70-87 staffing problems, 47-48
Third party sponsors access of, 93-94 advocacy of, 96-101 influence of, 8-10, 89-111, 197-198 referrals by, 91-92 service to BHA, 94-96 social agency referrals, 91-92
Traditionalists, 72-74 managers and, 122 managers as, 135-136 political influence on, 107
Transfer Committee, 120-121, 123 Transfer System
Master's office recommendations, 159-160
Tucker, Bill, 131-134
United Community Services Committee on Public Housing (UCS)
reform and,l6-17 United States Census of Housing, 39n United States Commission on Civil Rights
racial integration and, 23-24 Urban Institute study, 198-199 Urban renewal
racial segregation and, 14-15
Vacancies, 22, 120, 140, 149 rates, 61-62 reporting, 49
Waiting lists, In assignment by, 43-44 classification by need, 37-38 client empowerment and, 200
Subject Index
Waiting lists (Cont.) HUD audit of, 148 Mary Ellen McCormick project, 128-
129 race and, 193-194 tenant selection departments, 37
Weaver, Robert, 28-33 Weberian ideal
regulatory justice and, 3-4, 194-195
Welfare Department advocacy of, 97 See also Social agencies
Welfare programs rule allocation and, 3, 194
White, Kevin, 34, 182 Whittlesey, Robert, 158-167 Wood, Elizabeth, 13 Workload, 82, 94
221