_ _—_-—— —.--—‘—_._ vw'r‘ v 'I'I‘IIL IN ELUKAIIUN ur DUDLAL. AND URBAN PLANNING IN URBAN RENEWAL THESIS FOR THE DEGREE OF M.U..P. MICHIGAN STATE UNIVERSITY EDWARD JOHN WARD 1964 {meets LIBRARY Michigan State University ABSTRACT THE INTEGRATION OF SOCIAL AND URBAN PLANNING IN URBAN RENEWAL by Edward John Ward There is a growing awareness that critical social problems of low-income people in many urban slums are not being effectively met, either through urban renewal or social planning. A major reason for this is that present efforts represent segmented and partial solutions. This applies equally to both social and urban planning. Differing conceptual bases have led both approaches to deal with only segments of the total pro- blem, inhibiting a common understanding of the interrelatedness of the elements being dealt with. Effective programs to improve the quality of living of slum dwellers will require a concerted effort of many and a holistic approach to urban problems. A movement in this direction is taking place in several cities across the country. Plans of action have been developed with the coordination and cooperation of various public and private agencies and professions, representing concerted attempts to meet social problems. The approach is one of guiding low-income peOple toward a higher social status by increasing their social and economic mobility. Efforts are made Edward John Ward to integrate programs for physical renewal and for meeting social problems. These emerging programs and the federal anti-poverty program are likély to exert a strong influence toward the emergence of a more clearly defined profession of social planning. The potential is high for a broadened approach in urban renewal. To achieve this potential will require the integration of social and urban planning in two major ways. One is through a common planning.,__ process incorporating social and urban planning into a single planning function on a hierarchy of levels, from community-wide to an urban renewal“: project level. The planning process would represent a decision system through which community-wide efforts would be channeled. Goal, policy, and plan alternatives would be developed and tested at various levels or ' scales. Decisions made within this unified decision-making structure wo 'Ifld guide the operations of the many public and private agencies that would be 'n— volved in plan implementation. The interrelatedness of the problems dealt \ with at the renewal level with the larger community and, subsequently, \ effects of policies and plans on potential solutions, necessitates no less an~ approach than this. The integration of social and urban planning will also require . efforts to establish a common conceptual base as a framework for common understanding of conditions and problems, filling of gaps in knowledge, and preparation of plans and policies. This would allow the development of a holistic approach to the understanding of urban life by removing the constraints Edward John Ward that separate not only social and urban planning but other fields of know- ledge as well, A possible start toward a common conceptual base lies in viewing the community as a cultural system in terms of culture, society, institutions, and the community with a hierarchy of systems. Institutions, and their role in society, are viewed as subsystems that are essential to meeting human needs and to the functioning of the cultural system. Explora- tion into the cultural system brings a clearer understanding of why the distinction and separation made between social and urban planning and between social and physical problems is artificial and inhibits integration. THE INTEGRATION OF SOCIAL AND URBAN PLANNING IN URBAN RENEWAL BY Edward John Ward A THESIS Submitted to Michigan State University in partial fulfillment of the requirements for the degree of MASTER IN URBAN PLANNING School of Urban Planning and Landscape Ar chitectur e 1964 r Q/t’296’3 ACKNOWLEDGEMENTS The author is deeply grateful for the inspiring assistance and valued suggestions received from Professor Stewart Marquis of the School of Urban Planning and Landscape Architecture, Michigan State University. ii TABLE OF CONTENTS Page ACKNOWLEDGEMENTS ..................... ii LIST OF FIGURES ........... . ............... v INTRODUCTION ............... . I Ch ter (13 PRESENT CONCEPTUAL BASES FOR SOCIAL AND URBAN PLANNING .................. 7 Background. . ......... , ........ , . 7 Organization and Functions ......... . ..... l3 Approach to Planning - The Planning Process. 24 Shortcomings - Changing Directions ........ , . . 30 ® INTEGRATION OF SOCIAL AND URBAN PLANNING: PART I ........................... 34 The Planning Process ................... 38 Goals ............................ 42 Policies .......................... 45 Policies and the Comprehensive Plan ........... 46 Policy Planning .................. . . . . 52 A Planning Decision System ............... 55 Organization - Incorporation of Social and Urban Planning ......................... 61 @ INTEGRATION OF SOCIAL AND URBAN PLANNING: PART II ................ . . . . . ...... 73 The Slum Culture - Its Nature and Problems ....... 73 Implications For Urban Renewal. . . . . . . ...... 80 Emerging Programs ................ . 83 Summary Of Major Points ............... 97 Federal Poverty Program ................ 102 Community Renewal Program . . . . ...... 106 Urban Renewal . . . . . . . . . . ............ 112 iii (T) TABLE OF CONTENTS -- continued TOWARD A COMMON CONCEPTUAL BASE FOR SOCIAL AND URBAN PLANNING ...... The Total System. . . . ....... . . , ...... Cultural System ............... Culture. . . . . . . . . . . . ........ Society ........ . . . .. . .......... Institutions. ........ . . Functioning of institutions.. ..... . . ..... Changing functions Of institutions. . . . . . Social Problems ............. . . . . . The Community as a Social System. ...... Social Planning Defined ..... . ........... Framework For Community Social System Model. . . System Structure. System Operations ..... , . . . . . . ..... CONCLUSIONS................ ....... iv Page 115 119 121 124 126 128 131 134 139 146 148 153 155 156 157 LIST OF FIGURES Figure Page I. The Planning Process ..... . . . . . . . . ........ 41 2. Policy Sets. . . . ..... . . ................ 54 3. A Planning Decision System ...... , ........... 57 4. Organization of Decision System ............... 62 5. Present Ways of Studying the Urban Community ....... 121 6. Psycho-Social Theory of Cultural Systems ......... 122 7. Segmented Approach to Viewing Social Problems ...... 146 8. Basic Elements for a Common Conceptual Base ....... 147 9. The Community Within The Total System. . . . . ..... 148 10. Community Social System Model ............... 149 ll. Isolating Culture Components ................ 150 12. Social Planning Defined. . ........... , ..... 151 13. Basic Concept Of Community Social System Model ..... 154 14. Framework for Community Social System Model ...... 155 INTRODUCTION Criticism has been leveled at present urban renewal efforts as not being adequate to overcome social problems. Many feel that a broader approach must be developed, one which would represent a concerted compre- hensive effort to meet the total problem. Much of this criticism stems from the growing realization Of the great complexity involved in community renewal areas to which action programs must be totally geared if they are to be effect- ive. This is reflected in the charges that urban renewal, as now practiced, is destroying the social structure of lower income groups and dispossessing them from preferred habitats, inflicting psychic disturbance in the process; and that urban renewal is defeating its purpose by forcing low-income groups into neighboring substandard areas, speeding up the process of blight and the formation of new slums. Or where new housing and facilities are pro— vided for these groups, many major problems still remain; i. e. , individual and social pathologies, hopelessness and despair, and the ramifications of this for the community as a whole. There is a growing appreciation that the chronic despair Of many renewal area residents is accentuating their plight. "For, when expecta- tions for betterment are low, so too are aspirations - and thus, job short- ages, senseof personal insufficiency, poor performance in school, deficient cognitive, occupational, and social skills, rejection by the larger society, and a range of other disabling conditions resonate upon each other in self-perpetuating waves. "lOn the other hand, there is a growing realiza- tion that cultural diversity, including diverse values, is a characteristic of our society. Needs and desires can vary considerably among residents of different renewal areas and should be reflected in action programs. Thus, while urban renewal has been largely successful in other areas, including the redevelopment Of slums (but not for the slum dwellers), it has not succeeded, except to a limited degree, in improving the life of low- income slum dwellers. Social planning has traditionally dealt with the problems of low-income people, primarily through the efforts of social workers, but it too has not been very successful, largely because of the approach taken. To fill this gap new approaches are emerging, respresent- ing concerted efforts by many public and private agencies to overcome social problems and improve the living conditions of low-income slum dwellers. These approaches are beginning to give the approach Of social planning more meaning and direction then it previously had. As these approaches are attempts at comprehensive solutions, the integration of social and urban planning is occuring to some extent. Social planning is not just concerned with the lower-income groups. Its function has spread to the point where now it covers, directly lMelvin W. Webber, "Comprehensive Planning and Social Responsibility, " Journal Of the American Institute of Planners (Vol. 29, NO. 4, Nov. , 1963), p. 233. and indirectly, the entire pOpulation Of a community. This is largely in the form of many types of services provided by both public and private agencies. Attempts are now being made to do long-range planning for these services with respect to metropolitan areas. This too is exerting an influence on social planning. These two influences are actually separate and distinct, and as such represent two different directions social planning appears to be taking at the present. However, this is just emerging, and the dominant approach is a more traditional one. Social planning is still rather loosely defined as it covers a wide range of activities and incorporates many different organizations. In a more correct definition, social planning means plannirg by any formal organization (public or private) directed toward improving the welfare of people. In this sense, urban planning would be social planning, as would the activities of legislators, administrators, and judges, as well as social workers and others providing services. The term then, designates the process Of community (or county, state, or national) policy formulation (planning) in respect to social goals. and programs (and pur- poses). However, the term has come to mean the planning Of services involving individual and social behavior, eduction, etc. , including bringing deviants into conformity with community behavior standards, and prevention of certain types Of behavior. This thesis will use both connotations - the former with reSpect to proposals, the latter for descriptive and evaluative purposes. The criticism that has been leveled at urban renewal has in effect been made against urban planning which is the major profession working in urban renewal. It is felt that urban planners do not have an adequate under- standing of the social aspects of planning. TOO Often this is glOssed over in their plans. For this reason, this thesis emphasizes the human components of planning rather than the physical to gain a better understanding of what social planning is doing and how it can be coordinated with the function of urban planning. In these terms, emphasis is placed on the lower-income slum dwellers, largely Negroes, whose condition is becoming increasingly more critical as witnessed by the racial conflicts occuring in our cities. Solutions for meeting their problems have to be found. This does not mean that it is prOposed here that urban planners should take on the function of social planners, only that they develOp a greater awareness of the social aspects so that both can be brought together to form a comprehensive and concerted effort to meet the problems of the lower-income slum dweller. This would also require that social planners develop a better understanding Of the physical and natural components that urban planners deal with. There is an additional reason for these emphases. Urban planning is considerably more organized into the government structure on a hierarchy Of levels and more sophisticated in its planning process than social planning is. It is felt that urban renewal does Offer the means for meeting problems if its approach is broadened. But the meeting of all problems of the slum dweller can not take place within the confines Of a renewal area - both the problems and the solutions must be related to the larger community. This suggests the possibility of a single planning function which would take advantage of an organizational structure already in existence. This relates to the approach of this thesis with respect to the integration of social and urban planning in urban renewal. Rather than dealing with the topic in a detailed context, the approach is one of attempting to establish a broad framework to show not only how they may be integrated, but also incorporated into a common and comprehensive planning function. Proposals are built upon an evaluation of the major strengths and weaknesses of both social and urban planning in their approaches to both urban renewal and the problems of slum dwellers, and to the total community. They also reflect some Of the ideas being advanced to improve the urban planning function, and the ideas contained in the emerging programs mentioned above. In this context, the integration of social and urban planning is dealt with on a total community basis as well as for the more detailed urban renewal level; but as a unified planning process. This essentially is the direction given to Chapters II and III. From Chapter I, however, it is clear that social and urban planning operate from separate conceptual bases. Thus, while proposals are made for the integration of social and urban planning, it is the contention of this thesis that this integration will occur to only a limited degree unless a common conceptural base is developed. Chapter IV is a suggestion in this direction. Obviously this will only occur gradually. As such, the proposals are based on this awareness and also the contention that a common conceptual base could be achieved if initially social and urban planning are brought together in an effort to better understand our environment and how to deal with its problems, not only with respect to the lower class, but all the people in a community. This thesis expands on what appears to be the major directions the emerging social planning profession is heading, but with the notion of integrating it with urban planning to allow the development of a much more comprehensive approach than now exists with respect to problems that have -solution for many years (that is, since concern for them has been exhibited). It requires efforts on the part Of both urban and social planners to broaden their horizons. As this thesis is writteni‘for urban planners it is an attempt to point out the areas where their knowledge and awareness needs to be expanded. CHAPTER I PRESENT CONCEPTUAL BASES FOR SOCIAL AND URBAN PLANNING Background The social reform movement of the late 1800's and early 1900's was a common source of inspiration for both social and urban planning. Both movements were stimulated by deep concerns for the poor conditions of urban life that were then prevalent, primarily in big city immigrant tenement areas. To some degree, a common concept was, for some period of time, shared by both. Essentially this was the belief that the physical environment was a direct determinant of an individual's welfare (especially with respect to housing). The different conceptual bases, though, have led in different directions with respect to planning approaches and emphases. These different bases were actually apparent before the social reform move- ment (at which time, social and urban planning were probably more closely aligned then any time since, despite a somewhat limited and narrowly- shared concept). The evolution of the two planning movements since the social reform period has led to considerably different approaches to the problems of urban life. However, this is not to say that a great gap separates the two, but .rather that in the concentration of efforts to build up knowledge, skills, methods, and procedures peculiar to each, the common bonds, objectives, etc. , have been largely neglected, resulting in segmented approaches. Urban planning has been built upon a conceptual base essentially technical in nature. Early planners were drawn from the engineering and architectural professions. This is still reflected in urban planning today. In its evolution, urban planning has greatly expanded its approach and area of concern, from location and design of public facilities (or civic design) to the notion dcomprehensive planning. Despite the great increase in knowledge and professional competency, urban planning still views man's environment predominantly through artifacts, i. e. , man- made components. This is understandable when it is realized that the urban planner's responsi- bilities have always related primarily to the physical and locational aspects of development within a particular government's jurisdiction. And "having accepted professional responsibility for the physical environment, the urban planner was thus accorded a key role as agent of human welfare. "1 However, this key role has been interpreted to mean that the cure for social problems is through improvement of the physical environment. This concept, as mentioned above, getting its greatest impetus from the social reform period, is still largely prescribed to by many urban planners as reflected in many urban renewal plans. Social planning had its early beginnings in charity organizations, primarily in the form of religious groups organized to aid depressed or needy families; this expanded to a fairly large scale in the last quarter of lMelvin M. Webber, "Comprehensive Planning and Social Responsibility, " Journal Of the American Institute Of Planners (Vol. 29, No.4, Nov. , 1963), p. 233. the 19th century. The prevailing concept, following the social philosophy of the times; was that moral defects, illness, drinking, and gambling were the essential causes of poverty. "Their attempts of rehabilitation; therefore, were directed toward a behavior reform of the individual -- they sought to achieve this goal by personal visits, advice, aid —- in each case the re- habilitation of an individual was to be carried on after a careful investigation of his conditions--. This was the beginning of casework. "2 This approach then was based on the assumption that an individual was in a particularly poor condition or situation due to some fault in his behavior (this belief is still held by many persons). In time this approach became questionable when it was realized that frequently the causes of distress were not character defects of the poor but the social conditions in which they lived. Such conditions were illness, unsanitary and over-crowded housing, low wages, inadequate education, etc. It was during the social reform movements that recognition of the environmental influence on the individual was supported, through exposing the social evils of the emerging industrial society and stressing the need for fundamental social reforms. There have been instances where settlement houses and social reformers have initiated interest and action in city planning, particularly where a city lacked leader- ship Or adequate staff facilities for this purpose. 3The effect of these 2 . . . Walter A. Friedlander, Introduction to Soc1al Welfare (New York: Prentice-Hall, Inc. , 1955), p. 168. 3National Federation of Settlements and Neighborhood Centers, Neighborhood Centers Today. Action Programs for a Rapidly Changing World (New York: 1960), p.11. 10 influences brought a recognition to social workers that social reform did not solve all individual problems. This recognition resulted in a continuing expansion of community services, such as clinics, employment bureaus and adult education. Accompanying these changes was a shift in emphasis toward "family welfare work, " and the formalizing of welfare "institutions" (previous organizations having lost, in many instances, their religious and charity affiliations). It was also during the social reform period that the settlement house movement was developed, exerting a strong influence on the con- ceptual base of social planning. This movement had a major concern with the well-being and development of the neighborhood, ”emphasis being placed upon the self-organization of the residents of a community to bring about the needed changes through direct efforts, mobilization Of local resources, and democratic social action. "Slt was through the settlement programs that the notions of community organization. and social group work had their begin- nings. 6Inferred in this approach is that while poverty, Sickness, suffering, and social disorganization have always existed throughout the history of mankind, only the industrial society Of the 19th and 20th centuries had to face so many social problems that the Older institutions - family, neighbor- hood, church, etc. - could no longer adequately meet them. This relates 4 Ibid. , PP- 167—176. Arthur Dunham, Community Welfare Organization: Principles and Practices (New York: Thomas G. Crowell CO. , 1958), p. 74. 61bid. 11 to the changes taking place in our society, and the assuming Of greater responsibility for the well-being of people by both government and private organizations. While social planning, in its present stage of development has been organized on a hierarchy of levels -- community, state, national -- most of the planning that would deal directly with solutions for overcoming problems is still handled at the individual, family, and neighborhood level (settlement houses are now called neighborhood centers). This emphasis was reinforced, especially with respect to the individual, by the later development Of psychiatric theories (influence of Freud), giving new insights to social workers who have attempted to incorporate these theories into their concepts. This has exerted a very strong influence on social casework. But as in urban planning, social planning draws from a wide variety of disciplines, especially sociology, psychology, and education. 7The resulting effect has been different types Of social planning carried out at different levels, as described in the section to follow. Vestiges Of past concepts and influences, as well as more recent and still evolving ones, are all reflected in the conceptual base of social planning. As in urban planning, social planning has come a considerable way, with respect to knowledge, methods, procedures, from its early beginnings. However, even in its advanced stage, it too is still largely a segmented approach to the larger social problems, for social planning deals 7Fried1ander, Op. cit. , pp. 173-175. 12 with these problems primarily in terms of only their human components. In viewing the historical development Of social and urban planning, there is evident a common bond in the efforts of each to bring about social change - to convince people and government of the need to recognize certain conditions and the necessity for new or expanded functions. The effort to bring about social change can be considerable indeed in that it is quite difficult to go against dominant values and concepts. The process of recognition Of need and the forming of institutions to meet them can be very slow. This effort to bring about change applies to the notion Of planning itself. If there are to be effective solutions to meet today's social problems, then one of the requirements is likely to be a change in the conceptual bases Of both social and urban planning. As Gans points out, "social planning as it developed in response to the emerging urban problems Of a newly industrial- ized nation (social reform period) -- is actually the comprehensive pre- decessor of today's more formalized planning processes. However, as diverse disciplines were brought to bear on urban problems, each tended to apply its own concepts and methods. The result has been a fractionated attack. City planners sought to attain the 'good community and the good life' by physical change; public health officials, by clinics; and social workers, by settlement houses. Each method became institutionized in some physical form, each tending to be separate from the other. "8 8George Schermer, Meeting Social Needs in the Penjerdel Region (Penjerdel, April, 1964), p.7. 13 Organization and Functions The concept of urban planning has evolved through various stages of public and private responsibility including planning by contract, planning by civic improvement clubs, planning by the independent planning commission, and planning through an integrated planning department within the structure of government. It has only been relatively recently that urban planning has become established asla distinct process within the framework of government, carried out by an agency for that purpose. This process is still evolving, especially in government at higher levels than local, Social planning has experienced a similar shift in emphasis as government has gradually assumed the basic responsibility for the mainten- ance Of the social welfare Of the people. However, while government at all levels has greatly expanded its field Of activities in social welfare services and planning, much Of the organization and cOordination of social planning is outside the framework Of government; what actually might be termed voluntary social welfare. A large part of the financial support for the various functions performed is, consequently, through voluntary public contributions. The resulting pattern of services and agencies is of such great complexity that it probably defies detailed description. In viewing the organization and functions Of social and urban planning, considerable difference can be easily seen. Urban planning 14 throughout its deveIOpment has always attempted to work through government in some manner. From the earlier notion of "selling the plan" to government and citizens to the present trend of incorporating the planning function within the government structure itself, reliance is placed on public action for plan implementation and also for financial support. Social planning, however, is organized and carried out by both government and independent private organiza— tions. As far as being organized on a hierarchy of levels is concerned, social and urban planning are similar - local, metropolitan, regional, state, and national. However, social planning is also usually organized below the local level -- district and neighborhood -- which urban planning is not (although it certainly works at these levels, especially in urban renewal areas). As the pattern of organization is much more complex for social planning than urban planning, it would do well here to briefly view the former in what appears to be the more common form. In the public sector there is a mixture of services and programs that are ‘local, state, and federal financed and administered. In the private sector services and financing also vary widely with many combinations. Such organizations as United Funds and Community Chests perform what is called "central services, " a term used to describe central fund raising, social planning, information, research and referral services. These two organizations, 15 as they control monies on which private agencies are dependent, are in a position to influence the shaping Of functions, policy and standards, 9 Within each sector of public and private control there exist many independent agencies carrying out a multitude of services and programs with varying areas of jurisdiction. This fragmentation is largely the result of agencies being organized to meet some particular problem, such as in the areas of child welfare, Old age and health. The result Of this is that there exist "a large and confusing array of specialized or limited purpose health and welfare agencies (public and private) that have emerged and grown in response to recognized specific needs of human beings. The viability of function, the quality and standard of service, and the adequacy in relation to total need for the particular service are so varied that no generalization can be made, except that in the area of mental health and emotional and social maladjustment the services are much more deficient than in the area Of physical illness and handicaps. "loThe pattern Of organi- zation also varies from one city and region to another. A further implica- tion of this is that social planning has a much looser and varying connotation to it - it depends, essentially, on one's frame of reference - than urban planning has ever had. However, there have been in more recent times attempts to coordinate efforts and activities, in the form of various 1" 91bid., p. 29. 10Ibid., pp. 23-25. 1‘6 federations, which have the purpose of giving direction to social planning. As such, it would be more beneficial to view more closely these federations, as well as to look more closely at the Specific kinds of social planning, rather than particular programs and services. Chapter II will take up the latter in more detail as represented in latest attempts at comprehensive social planning. Before viewing these federations and their functions, it would be of value to briefly list the major functions of metropolitan planning agencies for comparison purpose 3 . 1. Research and Analysis -- those areas and those fields of study necessary to obtain a comprehensive representation of metrOpOlitan-wide conditions and problems. This responsibility might also include the distribution of relevant data and research findings to pertinent public agencies, or as requested by others. This would extend also to the presentation to local communities major findings on conditions, problems, needs, etc. of the metrOpOlitan area. Data—Bank and Clearinghouse Function -- purpose here is usually to establish a strong relationship with all local planning functions in the metropolitan area to 17 facilitate communication for the exchange of data, possible coordination Of studies wherever desirable, pooling of efforts and resources for joint studies, etc. 3. Coordination -- in addition to above types, this would include coordination with respect to relating local plans and policies to metropolitan plans and policies. In some cases, this responsibility might extend to operating departments - but this is usually a stronger function on the city planning function level. 4. Formulation Of Policy -- assist metrOpOlitan planning representative body and hence, local communities, in formulating comprehensive long—range policies (including goals) for the metropolitan area - such as development patterns, recreation, etc. 5. Plan Preparation -- this can range from comprehensive plans and policy plans, to detailed plans for specific elements, such as recreation. 6. Assistance - this might consist of providing technical assistance to local communities in a metropolitan area with limited planning functions. These functions are similar in many respects to those performed by the federations referred to above, aside from the different type of planning, of 18 course. The major difference is the function of administering and provision of services and programs which is peculiar to social planning and has no counterpart in urban planning. This is reflected in the internal organization and the ways in which both types of planning are carried out. "Councils Of Social Agencies, " "Health and Welfare Councils, " "Social Planning Councils" are some of the names given to the federations referred to above, which are now present in many metrOpOlitan areas, either organized at this level or at the local level. These councils state their major function to be planning for the prevention and solution Of social and health problems. The more specific functions relate to what was described above as "central services, " similar, to some degree, to United Funds and Community Chests. Actually the latter would be members of the councils, as would other public and private agencies. Specific functions that are common to most of these councils are as follows: 1. Research -- includes collection and compilation of data and special studies. Urban renewal appears to have stimulated the directions this research has taken as more emphasis is being placed on slum areas and problems involved. 11Ibid. , pp. 25-28. 12Friedlander, Op. cit. , pp. 602-609. 19 Planning —- performance of this function varies from specific plans of several agencies for cooperative solutions in some particular field to joint planning and action, coordination, and program development for a metrOpOlitan area. This function is also in- terpreted as meaning the council serves as a "clearing house" for information, experience, ideas, etc. Administering Common Services -- this relates to services to agencies or to the general public, which are not direct "consumer services" - examples would be information or public relations, referral, etc. They represent agreement within councils that these types of services are better organized under COOpera- tive auSpicies than under the auspices of a specific agency. Consultation and Assistance -- this is provided to individual agencies and organizations to assist in finding solutions to problems in such areas as services, policies, programs and standards. Joint Budgeting -- while councils do not have any powers here, they do work closely with financial federations (Community Chest, etc, ) and with local 20 governmental appropriating bodies simply because councils usually are the best central depository of knowledge about local social needs, and also because they are involved ina higher level of social planning. 6. Promoting or DevelOping Local Community Organization -- this represents an attempt to carry out social planning at various levels in a community or metropolitan area (districts, neighborhoods, suburban areas), and to develop relationships between local geographical units and the council. The functions performed by these councils and their voluntary status makes them quite similar to most metropolitan planning agencies. However, with respect to comprehensive planning, social planning, as now practiced, falls short of urban planning in the stage of maturity reached. The type of planning done by the councils is usually of great value to the member agencies, but as far as a comprehensive plan or policies plan is concerned, to guide all the social planning ‘and programming and to provide an effective solution to social problems, the councils are particularly weak. Essentially the planning done is too internally and service—oriented with the result that there are no directed and focused program toward effectively 21 overcoming social problems. 13Probably the largest barrier to comprehen- sive social planning through these councils is that their member agencies are largely independent of each other. Each agency is responsible for some particular welfare or health service(s) - including administration, budgeting, financing (private) and planning. In this situation planning can be easily relegated to a secondary position;when this occurs the purpose of the service(s) in the first place is overlooked, and perpetuating or administer- ing the service becomes the important Objective. Another apparent barrier relates to services. Schermer states, ”services come into existence in response to recognized needs. However it appears that many services have emerged in reSponse to narrowly-defined needs, resulting in an overly- 14 In Specialized and fragmented approach to highly complex problems. " much of the literature in which comprehensive social planning is discussed in relation to the councils, an apparent issue is now ensuing - mainly re- volving around whether the councils should remain without powers and whether public and private efforts should be consolidated or coordinated. There is prevalent in social planning considerable confusion with respect to terminology (same problem to some degree in urban planning), heightened by loose and conflicting use of terms. Friedlander offers what appears to be generally accepted definitions of three most common terms 13United Community Funds and Councils of America, Inc. , "Community Welfare Councils-What They Are and What They Do, " Community Organization In Action, Ernest B. Harper and Arthur Dunham (ed.) (New York: Association Press, 1959), p. 385. 1‘lrSchermer, Op. cit. , p.16. 22 as used in social planning -- social welfare, social work, and social services. Social welfare is the organized system of social services and institutions designed to aid individuals and groups to attain satisfying standards of life and health, It aims at personal and social relationships which permit individ- uals the development of their full capacities and the promotion of their well—being in harmony with the needs of the community. Social work is a professional service, based upon scientific knowledge and skill in human relations, which assists individuals, alone or in groups, to obtain social and personal satisfaction and independence. (Implied here is that the term "social welfare" has a broader implication than "social work"). Social services is often used in a very broad sense ~- defined as those organized activities that are primarily directly concerned with the conservation, the protection, and the improvement of human resources and including as social services: social assistance and insurance, chilc} Eyvelfare, public health, education, recreation, etc. Social planning is implicit in all three terms; actually each term refers to a particular type Of social planning. To use the same terms, social welfare planning would represent comprehensive social planning, which might consist Of policies or a plan for a coordinated approach to meeting the total social welfare needs of a metropolitan area or a community, or to meet social problems in a particular area, such as a slum. Social service planning would consist of administration, financing, carrying out, etc. , Of 15Friedlander, Op. cit. , p. 4. 23 some service(s). Social work planning would entail the implementation of a comprehensive social plan at various levels, and also planning with respect to particular problem(s). All would be part of the social planning process which essentially is a problem— solving process, as is urban planning. This is discussed more fully later in the chapter. As a critical element in the social planning process, it is necessary to view social work more closely. Social workers conceivably could deal with all levels of social planning - from establishing policies and developing comprehensive social plans at a social planning council level (or a higher level in the hierarchy), to planning at a social service level, and to actually applying a service (and hence policies or plans) to people - individuals, groups, or in neighborhoods. In performing the function of social planning, social workers are now assisted by many other specialists (as are urban planners in performing the function of urban planning ) -— doctors, lawyers, teachers, nurses, psychologists and psychiatrists, sociologists, counselors, and others. Essentially there are three processes involved in social work -- casework, group work, and community organization. The focus of case- work is with individuals and families - here the relationships are primarily interpersonal. Social group work seeks to help people participate in the 16Friedlander, Op. cit. , p. 6. 24 activities of a group. Community organization is the process of planning and developing social services in order to meet the health and welfare needs of a community or larger unit. 17"All the processes of social work deal with human beings, social situations, and social relationships. All i Of them deal, in one way or another, with the problems of adjustment and growth. "18 Approach To Planning - The Planning Process As mentioned earlier, urban planning has largely been built upon a conceptual base essentially technical in nature. This is still reflected, for the most part, in the present approach to urban planning. The planning process consists of three major steps -- survey, analysis, and plan design -- with the end product being a "master plan. " Facts are gathered in the survey and analyzed for some purpose, relating to land use, popula- tion, or urban blight. Plan design consists of applying planning concepts to the situation built up in the survey. The concepts consist of tested or theoretical solutions such as the neighborhood unit, green belts, land use zones, super-blocks, etc. Over the years urban planning has drawn upon many disciplines and professions for additional concepts that have been drawn into the planner's "pool Of knowledge. " As Daland points out, l7Friedlander, op. cit. , p.10. 18 Dunham, Op. cit. , p. 38. 25 "this model of the planning process fits well with the concept that planning is basically a technical problem of producing a physical plan for the city. " With the incorporation of the planning function into the govern- mental structure, implementation Of the plan has largely shifted from "selling" it to government by a lay commission, to implementation through capital improvement programs, land regulations, urban renewal, action programs by various government line departments, etc. While changes are constantly taking place with new concepts continually being brought forth with respect to approaches to the planning process - such as the notions of policy plans, a planning process common to all types of planning - the conceptual base of urban planning as reflected in the predominant present approach to the planning process is still essentially as described above. In viewing the dominant urban planning approach, there are implied two basic assumptions that have critical relevancy to the relation- ship between urban and social planning. The first of these assumptions, as mentiOned earlier, is the belief that change in the physical environment can bring about social change. The validity of this assumption has been questioned in recent years, and actually, the use of sO- called "social planning" is one expression of this questioning. 9Robert Daland, "Organization for Urban Planning: Some Barriers to Integration, " p. 201. 26 The second assumption is that this more traditional approach is method-oriented. This means that it has developed a repertoire Of methods and techniques which have become professionally accepted, and which distinguish urban planning from other types Of planning and professions. 20 Gans feels, as a result of this, the urban planner concerns himself largely with improvements in these methods —-- "he loses sight of the goals which his methods are intended to achieve, or the problems they are to solve. "21 This concern with method mightiwork adequately enough if the goals are traditional or the problems being dealt with are routine ones. But when confronted with new problems, such as are reflected in renewal situations, this approach does not work well. 22 It is not very clear from the available literature just what the planning approach is in the social planning efforts Of the various councils or federations. It is not evident that these councils attempt to achieve any meaningful coordination or relationship between the functions they perform (that is, within each council). Dunham, in discussing the problems of councils, brings this out when he states, "one of the most frequent defects in councils is the lack of a directed and focused program -- often a council flounders in a welter of well-intentioned miscellaneous activities rather Herbert J. Gans, "Social and Physical Planning for the Elimination of Urban Poverty, " Address before 1962 Conference of American Institute of Planners. 21Ibid. 22 Ibid. 27 than carrying forward an ordered program. There may be too little selection of projects and establishment of priorities -- frequently a lack of sound planning, conscious direction -- many councils lack a sufficiently dynamic concept of their function -- may be more concerned with coordinating what already exists than planning and wOrking to achieve what ought to be. "23 It appears that planning is more internally oriented, probably being applied to relatively specific problems or situations. However, there have been some notable exceptions to this, which are reviewed in Chapter II. Social work, however, does present an effort to define the pro- cedure or process that is gone through in attempting to select a course of action to meet a particular problem or situation. However, it is doubtful that this is viewed as a planning process. Dunham lists the steps involved 24 in the processes of casework and community organization. For casework: l. defining the general nature of the problem presented, 2. psychosocial study (factgathering), 3. diagnosis and formulation of treatment plans, 4. treatment, 5. evaluation. 3 Dunham, Op. cit. , pp. 148-150. 24 Dunham, Op. cit. , p. 39. 28 For community organization: 1. the recognition Of the community organization problem, 2. analysis of the problem (may involve factfinding), 3. planning what to do about the problem, 4. action to meet the problem, 5. evaluation of the action and its results. Essentially both processes involve the same procedure though worded differently. Each begins with a problem - each involves analysis Of the problem. While a study Of some kind would be involved in both processes, it appears that factgathering is more an integral part of the casework process than Of the community organization process - that is, factgathering or survey is not necessarily a step in the planning of every community organization project. 25Both processes also involve plan prepara- tion, action or treatment, and evaluation (feedback). The major difference between the above approach to planning and the urban planning approach is that the former is rather strongly problem- Oriented. This is more in line with the notion Of planning as a "problem- solving process. " However, as mentioned before, problems are narrowly- defined and specific, but this is probably not the fault of social work at this level, for the function of applied social work centers around working at the 24Dunham, Op. cit. , p. 39. 25Dunham, op. cit. , pp. 39-40. 29 individual and group level. Rather it is the absence of a coordinated and comprehensive program or plan at a higher level that is at fault, i. e. , councils - one that would provide a guide for specific social work planning - and one that would be geared to meeting and overcoming basic causes of social problems, which are usually far beyond the individual and group levels. As in urban planning, social planning, at least as performed by social workers, also relies heavily on methods, such as conference in 26 community organization; and interview in casework. Whether social work is as strongly method- oriented as urban planning, however, is not clear. In viewing the planning processes of both it becomes clear that a similar procedure is involved, and as such a common process, based on a common definition of planning, could easily be developed. In this sense planning would be viewed as a problem- solving process and a process for establishing and meeting goals. This is taken up again in Chapter 11. Rose, in discussing the experience Of attempts to integrate urban and social planning in metropolitan Toronto, views one of the major short- comings Of social planning as being the lack Of long- range planning, in fact, there is even very limited thinking along these lines. 27With some notable exceptions this appears to be the prevalent situation. In line with this, it can be inferred that, with respect to social planning, the planning process 26 Dunham, op. cit. , p. 41. 27 Albert Rose, "CO-ordination In physical and Social Planning in a Metropolitan Area, " Paper presented at the Eighty-fifth Annual Forum of the National Conference on Social Welfare at Chicago, May 16, 1958. 30 has not been as nearly thought out as in urban planning - i. e. , viewing the procedures social planners go through to arrive at courses of action as being a definite planning process. Shortcomings - Changing Directions The previous discussion Of the present conceptual bases of sohcial and urban planning emphasized the weaknesses and shortcomings Of both as reflected in their basic concepts and subsequently in their planning approaches. These shortcomings become quickly apparent when action in the form of urban renewal is taken, especially when aimed at the lower class in slum areas. Urban planning, perhaps by virtue of its more sophisticated planning process and approach and its incorporation into government, has assumed a leadership role in urban renewal efforts. This role could also be due to the problems Of the physical environment being the easiest to see, and hence, to improve. Because Of its role, urban planning has largely been the target Of criticism leveled at urban renewal efforts, especially its effects on the lower class. Social planning, on the other hand, has not yet exerted any real strong influence on urban renewal planning. This is due, in part, to its efforts being fragmented and the peculiar situation where social planning is carried out by both private and public agencies, with the agencies within each sector being largely independent of each other. Another important factor is that social planning, the term planning, 31 and all its connotations, is not yet fully perceived or understood by those responsible for it as being a process or a concept in the same sense as urban planning is. Where social planning has been carried out in an effort to meet social problems, it has been at the individual and group level through social work - but where there is no effective and compre- hensive program or plan, the best efforts of social work are likely to be dissipated. In addition, social work services are "based largely on "28but the very peOple they are intended to help, the client motivation, lower class, are largely without sufficient motivation. Also, "while the systems Of public assistance are designed to provide relief for all the poor, there is little provision for helping the poor to become self- sufficient. "zgsimilarly, "while thoughtful leaders in the social work field have Often suggested that more Of the services should be directed to correcting inequities in the social and economic system, and to alter- ing the environmental factors that cause poverty, dependency, and mal- adjustment, practically none Of the money or effort invested in the health and welfare services, per se, is actually directed to that end. "3olnferred here is that social planning is mainly directed at keeping "heads above water, " However, assuming the evolution of social planning to urban planning's stage Of development with respect to the term "planning, " 8 Schermer, Op. cit. , p.10. 29 Schermer, Op. cit. , p.10. 30 Schermer, op. cit. , p. 48. 32 there still would be the question of different conceptual bases that would have to be faced if social and urban planning are to be effectively integrated. While the shortcomings and weaknesses have been emphasized thus far, this does not imply by any means that recognition of them does not exist on the part Of both social and urban planners, or even that efforts to bring about a more effective solution are not being made. Some social planners are beginning to think about the larger physical and economic urban area which so greatly affects the conditions they must deal with; and some urban planners are beginning to turn to sociologists and social workers for knowledge about the people for whom they should be planning. "In the face of changes in the nature of urban problems, the separate planning disciplines are beginning to realize the limitations of a specialized approach. "31There have been some recent attempts by social planning councils to apply planning at the metropolitan level; attempts to integrate social and urban planning in community development programs. There are also efforts to develop a comprehensive program to Overcome problems of poverty, with implications Of being incorporated into a community renewal program. In several Of our larger cities, efforts are being made to establish some form of planning and coordinating council, committee, or organization that will represent all the major aspects Of a 31Schermer, Op. cit. , p. 7. 33 community, and both social and urban planning. The passing of President Johnson's Poverty Bill by Congress has, potentially, far-reaching implica- tions for urban renewal and present approaches to it. These are some of the changes that are appearing on the scene, and which are explored further in Chapter III. However, as Schermer points out, "the steps toward genuine planning in the health, education, and welfare field as toward integrated urban and social planning are still in the embryonic stage. "32 32Schermer, Op. cit. , p.29. CHAPTER II INTEGRATION OF SOCIAL AND URBAN PLANNING: PART I In this chapter, the integration of social and urban planning is dealt with on a larger scale - namely, metropolitan or city-wide - under the contention that they must be integrated in a hierarch Of levels. Chapter III deals with the topic at the more detailed renewal level. A review of the latest efforts in social planning (recent and on- going) reveals the probable directions these efforts are increasingly likely to take. Essentially this can be pinned down to two major directions. One is the attempt, on the part of federated social planning councils, to determine existing and future needs and demands for services on a metropolitan scale, and to develop a comprehensive plan to meet needs and demands at this level. Primarily these plans represent coordinated thinking and decision- making on the part Of the various public and private agencies, with respect to desirable general and specific programs and coordination Of activities. Thus, these plans do represent an evaluation or analysis Of current pro- grams and an effort to redirect them into some more desirable pattern. The other major direction is the efforts of some public and private agencies and organizations to overcome critical social problems of lower classes in slum areas, these efforts taking the form Of concerted 34 35 and concentrated programs or projects in specific areas. These programs, for the most part, are developed and implemented almost entirely within the confines of specific geographical areas. The underlying concept of all these efforts, regardless Of major differences in approach, is the notion of "self-help, " supported by coordinated public and private services. While these programs or projects are not yet in their advanced stages, and as such it is still tOO early to evaluate results, it probably can be said that they represent the most effective action yet taken in social planning tO over- come critical social problems. The major reason there are two directions, and not what would seemingly appear to be one direction, is that these efforts are largely separated and independent. Welfare or social planning councils are begin- ning to develop comprehensive social plans for health, welfare and recreation services at the; metropolitan level. Social plans are being developed at the neighborhood level by semi-public organizations to overcome poverty of the lower-income population. The integration of urban planning with these latest social planning efforts has been achieved to some degree. However, a large gap is still apparent, especially with respect to the metrOpOlitan or city—wide scale. There is no indication of any trend toward attempting to integrate social and urban planning at this level, such as establishing common goals, policies, 36 etc. Social planning does appear to be moving away from a primary emphasis on the coordinating function for a select group of agencies to an emphasis on total community planning for all health, welfare and recreation services. Thus, there is a very definite trend in social planning to incorporate the notion of "comprehensive planning" much as it is used in urban planning. Further, the planning process or approach can easily be seen as being quite similar for the two. However, it is in the incorporating of social and urban planning in some hierarchy of levels - i. e. , from the metropolitan or city-wide level to a renewal level - that a critical problem exists. What is likely to develop is that a city would have a "comprehensive social plan” and a "comprehensive physical plan" with little connection between the two. While allowing for differences necessitating some separation, this does not represent integra- tion of social and urban planning except in a limited manner. There are also signs of emerging "social planning commissions" (social welfare councils with policy-making powers). The question can be raised whether there should be one "plan" and one policy making body or some other alternative. Also, what relationships should exist between public and private bodies with respect to final decision- making? Where should the planning function be placed (social- urban) - what responsibilities should it have? These questions 37 relate to organization and structure of planning and policy and decision- making, assuming social and urban planning should be integrated and incorporated in some form. Equally important is the question of establish- ing common goals, policies, and plans that would provide guides to social and urban planning and which would express the interrelatedness of social and physical factors. There is a need to relate detailed renewal planning with the more general metropolitan or city- wide planning. Specific renewal areas cannot be treated as entities unto themselves with respect to plans and programs. The above suggests that a need exists to integrate social and urban planning along with social and physical development policies and goals at various levels or scales rather than just one level - i. e. , renewal. In other words, a continuing, coordinated planning process should be established on a hierarchyof levels and which would represent a more comprehensive approach to Overcoming social problems and achieving desired positive directions than either urban or social planning has achieved, or could achieve, separately. The remainder Of this chapter is directed toward establishing a framework for integrating social and urban planning along these lines. Essentially this consists of the organiza- tion and structure of the planning function related to a common planning process. This framework is presented in a general, schematic form, owing to the obvious complexity involved. 38 The Planning Proces s The planning process as it is used in urban planning is beginning tO take on new dimensions and concepts through research carried out by urban planners and other students of urban affairs. This represents a continuing effort to make planning more Of a "comprehensive and continuous process. " As such the concept of the planning process has expanded con- siderably in recent years as traditional views and procedures have been challenged, resulting in much rethinking on the function and scope of planning. Much more concern is exhibited with respect to the bases Of plan develop- ment than has previously existed. This is in contrast to the method orienta- tion of urban planning discussed in Chapter I and which is still dominant. The use Of these evolving ideas allows a clearer expression Of the integra- tion of social and urban planning through a common planning process. The question could be raised here as to what extent in this planning process urban and social planning should be integrated. While this will be expounded on throughout the remainder of this chapter, it can be stated here that it is the contention Of this thesis that the two should not only be integrated but incorporated as well into one planning function and process extending into a hierarchy of levels - i. e. , from a metrOpOlitan or city-wide level to a renewal area level. 39 Planning in its broader meaning is not only a method or technique, it is a social process that has become an institution. In this context planning can be defined simply as goal-oriented human action adjusting to, and bring- ing about, social change. By comprehensive planning is meant taking into account all the relevant purposes of a social unit (city, renewal area, etc. ) in carrying out the function of the institution Of planning. The planning pro- cess refers to the "carrying out Of this function, " or more specifically, a sequence of action for the development Of plans for achieving desired goals. The concept of process is used here in a behavioral (sense rather than a technical meaning which would relate to stages of planning in some defined work program Of a planning agency (this is beyond the scope of this thesis). With respect to the deveIOpment Of a framework for a common planning process for social and urban planning, the concept of planning is used to mean "social planning" as defined in Chapter IV. The planning process consists of stating problems and goals (included here also would be the whole program of research), development of plans (of what to do and how to do it), action or implementation, and evaluation. It is useful to view this process as a decision system as planning is actually one form of decision- making. The major parts, namely goals, policy plans and end plans, will be discussed first and the various parts Of the planning process will then be brought together in the 40 form of a decision- making model. This model is then related to a suggested organizational structure incorporating social and urban planning into one planning function. Figure 1 depicts, in a schematic manner, the general steps involved in the planning process. Based upon study, analysis and synthesis Of the characteristics, problems, needs, values, policies, and resources of a social unit (we can express this as "understanding the situation" - an initial statement of problems and objectives that would guide the research program), goals are formulated. From the goals a set of policies are developed which set the courses of action for decision- making and for the development Of the comprehensive plan (and other end plans, such as re- newal plans). After action takes place - application of plans and policies to the social unit - the last step in the planning process is evaluation with respect to plans and policies contributing tO solving social problems and achieving the stated goals. It is important to point out that these stages occur in cycles which' proceed in a circular rather than a straight-line se- quence, with one sequence of action moving into a second, and a second into a third, and so on. 41 .wood .Twfimnofinb 33w nmeodz 6.333235% canomncoau one wdwgofinm nmnnb mo Hoosowv .GOmHoZ wfimno Conmouw >Q .wnwnaflnm Honoflom one scarab a: noooummzw $55"on choSOnH nah .oofifipno mwmofi conmwznans on 50.3 “bandpass OZHZZ «ianm QHDZHHZOU 7313 29232 29.33 mimzmm -Emos -A<>m 202.04.. -mmnozoo sofioo I ZOHH