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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