THE ESTABLISHMENT OF A CONCEPTUAL FRAMEWORK
TO ENHANCE EDUCATQRS‘ UNDERSTANDING
OF COMPREHENSIVE PLANNING

Thesis for the Degree of PI}; Di
MICHIGAN“ STATE UNIVERSITY
GEDRGE WILLIAM STAN-SBURY, In
1970

 

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. Allichigan State
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This is to certify that the
thesis entitled

THE ESTABLISHMENT OF A CONCEPTUAL FRAMEWORK
TO ENHANCE EDUCATORS' UNDERSTANDING

OF COMPREHENSIVE PLANNING
presented by

George William Stansbury, Jr.

has been accepted towards fulfillment
of the requirements for

Ph.D. Curriculum

degree in

Ca. 4%

Major professor

 

Date ‘17; 7l7 0

0-169

 

 

 

 

ABSTRACT

THE ESTABLISHMENT OF A CONCEPTUAL FRAMEWORK
TO ENHANCE EDUCATORS' UNDERSTANDING
OF COMPREHENSIVE PLANNING
By

George William Stansbury, Jr.

The major objective of this study was to establish a
conceptual framework to enhance educators' understanding
and awareness of the comprehensive planning process. The
increased understanding and awareness that educators may
acquire from this framework should aid in efforts at
coordinating comprehensive planning and educational plan—
ning activities.

This study was divided into two parts. First: the
planning literature was reviewed to identify the contem-
porary trends and focus of comprehensive planning. This
review also identified certain factors and their meanings
utilized by the planning profession.

Second: these identified factors were used to
establish a conceptual framework of the comprehensive
planning process. Together, these parts provide the
basics needed by educators to better understand the

present conditions and future projections of a given area.

George William Stansbury, Jr.

The significant need and educational implications
for this study is that presently both planning and educa—
tion are in transitional phases moving from ad hoc plan-
ning activities to those more comprehensive in nature.
Education is affected by the social, economic, physical
and political activities and changes in society. As the
demands of society become more socially oriented, educa-
tion, being one of the most prominent and dominant Of
society's sub-systems, has both much to contribute and
much to gain from cooperative intersystem approaches to
comprehensive planning. This is especially true today,
for planning, in becoming comprehensive, is focusing upon
social needs and desires and is incorporating them into
the general context of the comprehensive plan. Thus, the
sub—system of education is at this time becoming directly
involved within the comprehensive planning process. How-
ever, before education or any other part of the "total
system" can either contribute to or gain from it, an
understanding of what this new comprehensiveness means is
necessary. The framework established in this study
should help develop this understanding.

Today, planning is that activity which attempts to
coordinate and synthesize all the sub-systems of society's
larger whole within the context of a comprehensive plan.
However, this activity has not yet reached the level of

Sophistication needed to coordinate and synthesize all

George William Stansbury, Jr.

the social, economic and physical variables within the
existing legal—political framework. This may best be
accomplished by involving the various sub-systems of the
larger whole within the comprehensive planning process.
The framework established in this study should en-
able educators to become both more accountable and more
responsible for fiscal and physical educational planning
activities by involving themselves within the compre—
hensive planning process. Involvement within this pro-
cess will also give the educational leaders of an area
added time for pursuits of an educational nature. This
study indicates that education has much to gain from the
process of planning. It also emphasizes that the pro-
cess of planning can never be complete unless the needs,
desires, goals and objectives of education are included
within the comprehensive planning process. This may
best be accomplished through the efforts of educators
working with comprehensive planners so that educational
needs and desires may be incorporated into the compre—
hensive planning process in a practical, realistic and

humanistic manner.

THE ESTABLISHMENT OF A CONCEPTUAL FRAMEWORK
TO ENHANCE EDUCATORS' UNDERSTANDING

OF COMPREHENSIVE PLANNING

By

George William Stansbury, Jr.

A THESIS

Submitted to
Michigan State University
in partial fulfillment of the requirements
for the degree of

DOCTOR OF PHILOSOPHY

Department of Secondary Education
and Curriculum

1970

/"'\

x
..
V

\v/

Copyright by
GEORGE WILLIAM STANSBURY, JR.

1971

DEDICATION

This thesis and all my graduate work and future pur-

suits are dedicated to my wife, Jan, for years of love,

encouragement and help.

11

f,
a
a
,7.
on;

 

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ACKNOWLEDGMENTS

The writer expresses his deepest gratitude to Dr.
Charles A. Blackman, major advisor, for his understanding
and advice during the preparation of this Thesis, and for
making my graduate program at Michigan State University a
stimulating and rewarding experience. The writer is also
most appreciative to the members of his guidance committee:
Dr. Louise M. Sause, Dr. Dale V. Alam, and Professor

Charles W. Barr, for their guidance, encouragement, and

helpful criticism.

iii

TABLE OF CONTENTS

Page
DEDICATION. . . . . . . . . . . . . . . ii
ACKNOWLEDGMENTS . . . . . . . . . . . . . iii
LIST OF TABLES . . . . . . . . . . . . . Vi
Chapter
I. INTRODUCTION . . . . . . . . . . l
The Need. . . . . . l
The Purpose of This Study . . . . . . N
Educational Implications . . . 5
Assumptions. . . . . . . . . . . 17
Questions . . . . . . . . . 18
Design of the Study.. . . . . . . . 19
Limitations. . . . . . . . . . 20
Summary and Overview. . . . . . . . 21
II. REVIEW OF THE LITERATURE . . . . . . . 2”
Planning a Definition, Trends and Direc-
tions. . . . . . . 2A
Planning a Governmental Function. . 35
Planning Recommendations and Proposals
in Michigan. . . . . . . . . . A2
III. THE MEANING AND SIGNIFICANCE OF THE IDENTI-

FIED FACTORS . . . . . . . . . . . 52
Introduction . . . . . . . . . 52
Population Studies . . . . . . . . 53
Economic Studies . . . . . . 55
Environmental and Land Use Studies . . . 58

Transportation. . . . . . . . . 60

Open Space and Recreation . . . . . 61

Other Public Facilities. . . . . . 61
Special Approaches: Appearance and

Social Planning . . . . . . 61
DevelOpment of the Comprehensive Plan . . 63

iv

Chapter

Tools for Implementation . . . . .
The Legal Basis for Planning.

Zoning . . . . . . .
Land Subdivision. . . . . . .
Taxation . . . . . . . . .

IV. THE ESTABLISHMENT OF A CONCEPTUAL FRAMEWORK.

Introduction . .
A Basic Schematic Planning/Education
A Conceptual Framework. . . . .

Goals and Objectives . . . .
Policies, Plans and Programs. .
Tools for Implementation . .

V. SUMMARY, CONCLUSIONS, DISCUSSION, AND

IMPLICATIONS FOR FURTHER STUDY . . .
Summary. . . . . . . . .
Conclusions . . . . . . . . .
Discussion. . .

Implications for Further Study . .
BIBLIOGRAPHY.

APPENDICES . . . . . . . . . . . . .

Page

108
108
111
116
121
12“

132

LIST OF TABLES

Table Page

1. Population of Michigan's standard metro-
politan statistical areas . . . . . . . 43

vi

CHAPTER I

INTRODUCTION

The Need

 

As society enters the decade of the 70's, the cer-
tainty exists that the complexity of our social institu-
tions will become unmanageable unless steps are taken to
guide their growth and direction. In the past, these
attempts have been rather laissez-faire, looking at each
of our institutions as rather a unique, independent
social sub-system. With an estimated population of 230
million by 1980 and an increasing demand on our social
institutions, these permissive tactics of the past will
no longer suffice.

The 70's will initiate new procedures in planning,

with a comprehensiveness that previously has been looked

 

upon with much skepticism.

The new planning,techniques will attempt to develop

coordinated and coo er tive effor t d
that exist among social, economic and physical planning
80 that the end roduct will trul fle t s e d

and be humanistically oriented.

The tasks facing comprehensive planning, as a syn-
thesizing activity of society, in the 1970's will be

1

vast. It must prOpose new ways to solve the many con-
flicts that exist among the various levels of government.
The focus of these activities at all levels will be the
tremendous increase in population and growth of our metro-
politan areas. Urban problems have and continue to pose
the challenge of finding new and better ways of effec-
tively integrating and coordinating activities of the
various sub-systems of our metropolitan areas.

The basic need for this study then is to provide an
opportunity for the leaders of one of these sub-systems,
education, to deepen their understanding and become more
aware of new trends and focuses in comprehensive planning.
There is a need for educators to be aware of and involved
in comprehensive planning activities so that educational
needs and concerns will be adequately and fairly repre-
sented and met.

Education, being one of the most prominent and domi-
nant of society's sub-systems, has both much to contribute
and much to gain from cooperative intersystem approaches
to comprehensive planning. This is especially true today.
For planning, in becoming comprehensive, is focusing upon
social needs and desires and is incorporating them into
the general context of the comprehensive plan. However,
before education or any other part of the "total system"
can either contribute to or gain by it, it must first

understand what this new comprehensiveness means. For it

is comprehensiveness, in the form of planning, that will

 

eventually help manage the complexity of our social insti-
tutions in a harmonious, humanistic manner.

The kinds of local planning activities that are now
under way are often inadequate to deal with and solve the
complexity of our present problems. As our metropolitan
areas continue to grow, many of their developmental prob-
lems will be solved only through joint governmental ef— I
forts. These joint governmental efforts should provide
the framework for planning activities to be carried out
on a regional scale. This regional approach to planning
should provide the framework to incorporate and coordi—
nate the various activities of all the sub-systems within
that region.

The focus of the 70's will push for the state to be
the central agency in comprehensive planning, because of
the unique vantage point it has in viewing various re-
gional developments within its political boundaries.

It is especially meaningful at this time to focus
upon education as a sub-system that is directly involved
within the planning process, for the educational needs of
the states show many of the causative factors which in-
crease the necessity of state—wide comprehensive planning
Within their political boundaries. Education by virtue
Of the Nation's Constitution has always been a state func—

tion. Therefore educational prOposals and recommendations,

to meet the needs of the people and to provide truly equal
educational opportunity, may well have to be incorporated
into a state educational plan. This then provides a very
basic foundation for including educational planning within
the context of the larger planning process.

The task now is to give the different sub—systems a
general understanding as to how better planning could
coordinate their various efforts into a comprehensive
endeavor. It is hoped that this understanding will en-
able education to make valuable contributions to these
comprehensive planning efforts, so that in the end, the
resulting comprehensive plan will truly include the means
for implementing educational needs and desires in a prac-

tical, realistic and humanistic manner.

The Purpose of This Study

The purpose of this study is to establish a concep-
tual framework to enhance educators' understanding and
awareness of the comprehensive planning process. This
framework will be established from the identification of
selected factors, most commonly utilized by the planning
Profession, while studying or working within a given
area, at various governmental levels.

The social, economic, physical and political forces
0f change at work among the various sub-systems of society

tOday are immense. The planning profession attempts to

coordinate and synthesize the various elements of society
and guide their future direction and growth. Education,
being one of the most prominent and dominant of society's
sub-systems, must be aware of this future direction and
growth.

Also, it is hoped, through the increased understand-
ing and awareness of comprehensive planning that educators
should acquire from this framework, a bridging effect
might evolve between the two professions. Today, society
is demanding that both professions become more socially
oriented. This bridging should help both comprehensive
planning and education to coordinate their efforts so
that future trends and developments may be more socially

oriented while becoming more comprehensive in nature.

Educational Implications

The most significant educational implication for
this study is that presently both planning and education
are in transitional phases going from ad hoc planning
activities to those more comprehensive in nature. A
review of the educational planning literature and a
review of educational planning activities reveals that
most planning in education is carried out on an ad hoc
basis. When planning information of a comprehensive
nature is available, it is usually found in journals or

publications, international in nature, or in reports

being made on comprehensive educational planning activi-
ties in a foreign country.

Education is affected by the social, political,
economic and environmental activities and changes in
society that planners study and influence. If present
trends and policies continue, these activities will exert
even greater influence on educational plans and policies
than ever before. The time has now come when the educa-
tional leaders of this and all states must become in-
volved in comprehensive planning activities.

Present educational policy shows that educators
take little or no part in planning activities other than
those which are concerned with expanding building pro—
grams and passing millage elections. These activities
are necessary, but are only part of the total picture.

There is widespread agreement today in academic

and governmental circles that public decisions
regarding education should be made "planfully"
rather than ad hoc. . . . It is widely agreed
that public decisions regarding education should
take into account policies and developments in
other sectors of the society and vice versa.

As education is ad hoc in relation to planning, so
are many of the present activities of planners and plan-

ning offices. In order to truly work "planfully," strong,

effective coordinating agencies are necessary. These

k

1C. A. Anderson and Mary Jean Bowman, "Theoretical
Considerations in Educational Planning," in Educational
gliflflipg, ed. by Don Adams (Syracuse: Syracuse University
Pess, 196A), p. A.

coordinating agencies are, and will become more so, offices
cf planning coordination. In the future, if educational
planning fiscal and physical in nature is to become effec—
tive, it may have to be closely tied to this coordinating
agency.

The trend at various governmental levels has been to
try to tie educational endeavors closely to the system as
a whole, but such an activity is difficult. The World
Year Book of Education, 1967, asks:

Why do most highly industrialized countries of the
West seem somewhat reluctant to adOpt educational
planning wholeheartedly? Is it because the pat-
terns are set and rigid, the administration in-
flexible? Or is it because the task really is

too complicated and difficult?2

To view and understand educational planning we must
first decide what one needs to know about it and what its
new focus is. The main thrust of educational planning
today is that it should be comprehensive rather than
piece-meal. But more significant and complicated is the
new dimension: it must be integrated with the rest of
society's sub-systems, through intergovernmental activi-
ties.

In short, three major new dimensions were added
to the older concept of educational planning:
Comprehensiveness of coverage, a much longer
time perspective, and more conscious and

 

2George Beneday, ed., Educational Planning, The
World Year Book of Education (New York: Harcourt, Brace
& World, 1967), pp. 6-7.

detailed integration with national economic and
social development.

Comprehensive educational planning is gaining sup-
port rapidly especially in the metropolitan areas. As our
metropolitan areas grow and become more complex, added
pressures are placed upon their educational systems.
Educators must acquire a clearer understanding of what the
metropolitan areas currently are and may soon become. The
1968 Yearbook of the National Society for the Study of
Education was devoted to this task. It indicated that:

. . the educational system must move . . . toward
intersystem co-operation with other social systems
throughout the metropolitan area. . . . There ap-
pears to be much room for educators to take the
initiative in becoming associated with metro-
politan-level, intersystem co-operative activi-
ties, to which they have much to cpntribute and
from which they have much to gain.

Public schools being educational institutions, as
well as governmental institutions, must become involved
in, if not lead, intergovernmental endeavors toward com-
prehensive planning.

The U. S. Commissioner of Education, James E.

Allen, Jr., is a strong advocate of this type of

 

3Philip H. Coombs, "What Do We Still Need to Know
About Educational Planning?" in Educational Planning, The
World Year Book of Education, ed. by George Z. Beneday
(New York: Harcourt, Brace & World, 1967), pp. 59-60.

“Daniel Levine and Robert J. Havinghurst, "Social
Systems of a Metropolitan Area," in Metropolitanism: It's
Challenge to Education, The Sixty-seventh Yearbook of the
National Society for the Study of Education, ed. by Robert
J. Havinghurst (Chicago: The University of Chicago Press,
1968). pp. 68-70.

 

H

planning, . . . he is adopting the Nixon theme of con-
solidating, improving, and better coordinating existing
programs and approaches."5 He is a strong advocate of
interagency cooperation and coordination. He feels the
federal government's support for education should be much
greater, and has created a deputy post for planning,
evaluation and research.

Directly related to better educational planning are
Title IV and Title V of the Elementary and Secondary
Education Act of 1965 (P.L. 89-10). Title IV called for
the establishing of nineteen "regional laboratories"
across the country to define the concerns and needs of
the area being served, and to help the different areas
improve educational practices. These laboratories are
certainly of a broad comprehensive nature functioning on.
a regional basis. Title V provides grants to strengthen
State Departments of Education. This Title should give
educators financial resources to obtain the needed infor-
mation to plan in a more comprehensive manner.

In summary, the federal focus seems to be one of
continued involvement while at the same time demanding
more responsibility and accountability. It seems that one

approach to becoming both more responsible and more

E

5Richard H. DeLone, "Cool Man in a Hot Seat,"
§§turday Review, September 20, 1969, p. 69.

10

accountable is through better educational planning at the

state level.

The states will continue to be an indispensable
part of the system for a number of old reasons
and for a number of new ones. The state has
ample powers and financial resources; it exists,
therefore it will be used. It will increasingly
be called upon to perform the functions of regula-
tion, leadership, and technical and financial
assistance and to remove archaic restrictions on
educational administration. With no sign of
metropolitan government in sight, the governor's
office and the legislatures will increasingly
serve as a place of arbitration and as a medium
for developing understanding among suburban and
city dwellers of their common interest in meet—
ing the wide-rangigg and disparate educational
needs of citizens.

As an example of the circumstances facing one of
the states, Michigan enters the 70's with forty-one per
cent of its total state budget appropriated for educa-
tional opportunities.

The state has as one of its principal responsi-
bilities the maintenance of an educational sys-
tem specifically designed to foster a level of
intellectual development and occupational com-
petence relevant to the needs of this day and

the future. This objective obviously requires7
systems and programs amenable to change. . . .

In order to accomplish this, Michigan, like all

other states, needs educational planning of a

¥

6Norman Beckman, "Metropolitan Education in Relation
t0 State and Federal Government," in Metropolitanism:
£218 Challenge to Education, The Sixty-seventh Yearbook of
theNational Society for the Study of Education, ed. by
Robert J. Havinghurst (Chicago: The University of Chicago
Press, 1968), p. 198.

7Budget Message of the Governor for the fiscal year

1970-1971, William G. Milliken, Governor of Michigan,
D. 25.

 

 

11

comprehensive nature. This can become reality through
better communication and cooperation among the various
educational and social institutions. It is also necessary
to coordinate these efforts with the units of government,
the legislature and the general public.

The State of Michigan has made recommendations for
better state planning activities, comprehensive and re-
gional in nature. Likewise, educational studies were con-
ducted and recommendations were made for better educational
planning, also comprehensive and regional in nature.

The most comprehensive study of elementary and
secondary education in Michigan was authorized under

Public Act 1966 No. 285. The Michigan School Finance

 

Study, better known as the "Thomas Report," deals with the

planning process of education. Terms like master plans,

 

coordinating activities and interagency cooperation are

 

constantly cited. The report states that:

A great deal of educational planning is carried
out in this country, but by many different
agencies and with a minimum of coordination. At
least until recently, educational planning has
been haphazard, local, and restricted to indi-
vidual s hool districts rather than state school
systems.

The following excerpts taken from the "Thomas Report"

(Pp. 29A-3A7), emphasize the need for this study through

n

8J. Alan Thomas, Michigan School Finance Study,

School Finance and Educational Opportunity in Michigan
(Lansing: Michigan Department of Education, 1968),
p. 293.

12

the educational implications that may be derived from
planning. To plan better educationally, the report con-
cluded that planning requires efficient governmental
organization. The existence of multiple levels of govern-
ment and the presence of overlapping jurisdictions creates
a duplication of effort and sometimes a conflict of
interest. The metropolitan areas are a perfect example of
this. Regional rather than local planning is increasingly
essential in these areas. For regional planning to be
successful, it must also be long-term planning.
In order for this type of planning to become pos-

sible, school districts must be organized efficiently,
so services may be effectively provided. This is true of
all districts no matter what the size. If services to
students are to be provided effectively and efficiently,
leadership must be provided in making this end possible.
This leadership would attempt to coordinate educational
efforts between or among districts so that in the end true
equality of educational opportunities would be available
for all youngsters of the state. This would entail ex—
pansion and development of the Departments of Education
in the states especially in relating and using new ap-
proaches to planning.

School systems and states have traditionally used

individual demands for additional education as

the basis for planning, but today a more sophis—
ticated economic approach is being employed.

13

[This approach] to planning requires the services
of competent economists and related personnel,
and is most appropriately carried out at the
state level.9
This report strongly emphasizes the importance of
educational decision making in relation to educational
practices and programs. For new approaches to educational
planning to take place, it is necessary that decision mak-
ing powers be given to regions or the state as is appro-
priate to the level of decision-making necessary to imple-
ment educational programs most efficiently and effectively.
The"Thomas Report"further recommended that a com-
mission be appointed to develop a master plan for school
district reorganization, and that urban education be
studied at the state level to coordinate interagency acti-
vities. For all this to occur, planning is a key factor.
One of the most recent and controversial educational
documents in Michigan is the Report of the Governor's
Commission on Educational Reform (September 30, 1969).
For the purpose of this study, two of the recommendations
are significant. Concurring with the"Thomas Report"is
the recommendation that: "the constitution be amended to
enable the Legislature to collect a uniform statewide

property tax for school operating purposes "10

 

91bid., p. 320.

10Report of the Governor's Commission on Educa-
tional Reform, William G. Milliken, Governor of Michi-
gan, September 30, 1969, p. 10.

 

1“

Of prime importance in relation to the need for edu—
cational planning and its implications is the recommenda-
tion concerning administration.

State Administration

 

To fix responsibility for operation of the Depart-
ment of Education, we recommend that the existing
State Board of Education structure and the posi—
tion of State Superintendent of Public Instruction
be abolished by Constitutional amendment and re-
placed by a State Director of Education appointed
by the Governor, subject to Senate confirmation.

Regional Administration

 

To strengthen further the organizational structure
and responsibility of the State Department of Edu—
cation, we recommend that intermediate school dis-
tricts be discontinued and replaced by 10-15 re-
gional education areas.
Further Reorganization of Local Districts
To strengthen the regional administration, and to
provide wider educational Opportunities, we 11
recommend further consolidation of local districts.
The"Thomas Report"and the'Governor's Educational Re-
form Package"emphasize the educational significance com-
prehensive planning will have in the future for Michigan,
especially at the elementary and secondary school level.
Institutions of higher education also seem to be
heading in this direction. In a statement issued February
25, 1970, the Michigan Council of State College Presidents
said:
It is the view of the Council of State College

Presidents that effective statewide planning and
coordination for higher education, including the

llIbid., pp. 7-8.

15

community colleges, is essential if the State of
Michigan is to achieve the highest quality educa-
tional program for its citizens. The long-
standing tradition of institutional autonomy in
Michigan's universities and colleges has provided
the basis for one of the finest systems of pub-
lic higher education in the United States. That
tradition should be preserved and strengthened
while at the same time providing for more effec-
tive educational planning and coordination.12

In summary, Michigan, at the State level, is moving
toward comprehensive educational planning in order to in-
crease her responsibility and accountability in educa—
tional practices. Several big questions remain to be
answered. What view will educators take of comprehensive
planning activities? Will, in fact, the educational
leaders of Michigan be involved in these activities? Or,
will the focus and direction given educational planning
activities be other than comprehensive in nature?

At present the central focus of educational planning
seems to be strongly centered around the Program Planning
Budgeting System approach (PPBS). This increases fiscal
accountability, but it should become part of the total
planning process, and not the process itself.

The conceptual framework of PPBS is keyed upon
planning and includes objectives, alternatives,

inputs, costs, time dimensions, outputs, analy-
sis, and evaluation. It bears repeating that

 

l2Statement paper, Michigan Council of State Col-
lege Presidents, Richard L. Miller, Executive Director,
erbruary 26, 1970.

l6
PPBS is oriented toward planning for output - in
education this means planning for learning.13
Should the aims of educational planning be, in fact,

planning for output? Is planning for output, planning for
learning? Is it possible for societal goals to be in—
corporated into a systems approach? Or will economic
dictates become the dominant factor?

The widely acclaimed new approaches to educational

planning are really evolved refinements of budget-

ing principles observed for some decades. [PPBS]

. Decisions on education cannot and should not
always be made on solely economic grounds, even if
technics were available to do so.1

The reasons for education and other sub-systems to
engage in comprehensive planning activities are varied
and long. The one dominant theme, however, seems to be
that until recently educators have not utilized the plan-
ning process. The need is here and the educational im—
plications of this need are great. If "comprehensiveness"
is not the goal of the educational planner, economic
progress may become the main objective. If economic
responsibility and accountability become the main objec-

tives, then education, in humanistic terms, may become

non-existent. In a complex society, perhaps the only

 

13George A. Chambers, "PPBS - New Challenges and
Opportunities for the Principal in Financial Planning and
Management," North Central Association Quarterly, Vol.
XLII, No. A (Spring, 19687, 306.

1“Calvin Grieder, "Program Budgeting may not Solve
Your Planning Problems," Nation's Schools, Vol. 81, No.
6 (June, 1968), 8.

17

way to preserve humaneness and individual freedom is to

work cooperatively through comprehensive planning toward

humanistic goals.

Assumptions

 

The basic assumptions necessary for this study are:

1.

That our social systems are continually growing,
becoming more complex and specialized. As

this process continues, a general synthesizing
activity is needed to coordinate the efforts of
the various sub-systems. That activity is
planning.

That planning, in becoming comprehensive, is
focusing on social needs and desires while en-
gaging in the planning process.

That education is one of those social sub-
systems that can help the comprehensive planning
process understand and meet the social needs and
desires of society.

That historically this nation never has taken
any form of comprehensive planning seriously.
That upon entering the decade of the 70's our
metropolitan regions will continue to grow.

That educational planning is hampered by multi-

levels of government.

l8

7. That in order to maintain a balance between
resources and people, comprehensive planning
must be taken seriously.

Thus the underlying theme of this study is the
assumption that the 1970's will find added pressures
placed upon our metropolitan regions. The planning talk
Of the 1960's will out of necessity become the realities
Of the 1970's. Education, being one of the most important
segments of society, will play an increasingly important
role. As its role increases so will its responsibility
and accountability. The demands and questions asked of
education will be answered only through better educational
planning. And better educational planning will evolve
finally as part of a total comprehensive planning effort.
It is assumed, therefore, that those who are guiding the
educational planning activities must understand and appre-

ciate the comprehensive planning process as a whole.

Questions

 

The significant questions to be answered in this
study are:
1. What are those factors utilized by the planning
profession that have direct bearing on an area's
composition and its future development?

2. What do these factors tell us about the area?

l9

3. How can these factors be utilized in establish-
ing a conceptual framework within which educa-
tors may choose to work to enhance their aware-
ness of planning?

A. What are the educational implications that may
be derived from using such a framework?

5. How can this framework help to bring about a
better understanding and cooperation between
educators and planners as they move toward
achieving the optimal goals for an area, in a

practical, realistic manner?

Design of the Study

This study is divided into two parts. First: the
planning literature will be reviewed to indicate the con-
temporary focus and trends of the planning profession.
This review will also be used to identify certain factors,
and their meanings, utilized by the planning profession.
These factors are the basics needed by educators to better
understand the present conditions and future projections
of a given area.

Second: these identified factors will then be used
to establish a conceptual framework to increase educators'
understanding of comprehensive planning so that they may
better utilize the process to increase their awareness of

present conditions and future developmental trends of

20

their area. Such insights should make the performance of

their daily responsibilities and implementation of educa-

tional change more meaningful. This understanding and

utilization should also tie the direction of the two pro-

fessions closer so that the planning efforts of both might

truly be more comprehensive in nature.

Limitations

 

The limitations of this study are:

1.

That it focuses upon just one of the areas edu-
cators must become aware of today, namely, the
comprehensive planning process.

That the focus of education and educational
planning is peOple and this study deals with
them only indirectly. It is a way of providing
a better understanding of those complex insti—
tutions in which people must exist.

That the present focus of educational planning
is the Program Planning Budgeting Systems (PPBS)
approach and this study does not deal with this
topic.

That it may tend to oversimplify, for educators,
the complexity of the planning process. This
framework is intended to serve only as a guide
to help educators understand the comprehensive

planning process.

21

5. That the factors used are identified only, and
not tested items.

6. That the effectiveness of this framework will
prove successful only when used and tested by
educators while working within their service
area.

7. That no conceptual framework holds in and of
itself the answers to the type of complex prob-
lems with which this study deals.

8. That, by its very nature, the planning profes-
sion, like education, is in a constant state of
flux and change. This framework should not be
looked upon to provide an answer but rather to
provide guidance in the coordinating and cooper-
ation of the various planning efforts of the
two professions, so that the end product will
truly reflect social needs and desires as well
as economic and physical needs within the exist-

ing political framework.

Summary and Overview

 

To summarize, this study will deal with the estab-
lififlnnent of a conceptual framework through which educa-
tOITSInay view the present conditions and future development
(if an area and its educational implications. Although not

tr“? central focus, it is also hoped that this study will

22

serve to make planners more aware of the educational situa-

tions and problems created as an area changes and develops.
As our social world becomes more and more complex

and specialized, a generalist is needed to synthesize its

systems and institutions. By focusing on the complex

whole (planning) and one of its parts (education), it is

tuned that the two academic, non-disciplinary approaches

will prove meaningful toward a better understanding of

tflp types of coordinating and cooperative efforts so needed

I
txflay.

. Chapter II, "Review of the Literature," will review
the contemporary planning literature to establish the
cfirrent trends and directions of planning. It will serve
ti establish the current principles and practices of the

pfanning profess ion .

. Chapter III, "The Meaning and Significance of the
lientiifled Factors," will continue reviewing the planning
lpterature, but with a different focus. This chapter is
Euxanded to be more specific in identifying and explaining
Eme'basic studies, data collections and special approaches,
iuich lead to the development or revision of policies,
ilarus and programs. It will also discuss the tools for
inplxmnentation utilized by the planning profession.

{ Chapter IV, "The Establishment of a Conceptual
iramework," will establish a conceptual framework which

rill.<enhance educators' understanding of comprehensive

23

planning. It will provide a practical breakdown of the
planning process which educators may utilize in their
service area to understand more clearly and, hopefully,to
become more involved in the planning process, so that
the educational goals of the area may be met within the
context of the larger whole.

Chapter V will summarize this study. The conclu- r“-
sions will answer the questions posed in Chapter I, and

the educational benefits to be derived from the use of 5

this study will be discussed. Suggestions for further

 

studies will also be included. i

CHAPTER II

REVIEW OF THE LITERATURE

Planning: Definition, Trends
and Directions

 

A review of the literature in both planning and edu-
cation failed to reveal any studies that had as their
central focus an attempt to delineate and clarify the
planning profession and process specifically for educa-
tors with the ultimate end of helping educators to involve
themselves in the comprehensive planning process. There-
fore, the review of the planning literature will focus on
those aspects of the planning profession which are of
special significance to educators today.

This chapter, then, will define and discuss planning
and the planning profession, current trends and directions
of the planning profession, specifically significant to
educators. Political and governmental implications will
also be discussed. Finally, in order to clarify these
elusive entities, specific recommendations, prOposals and
activities currently occurring in the State of Michigan
will be cited.

To define a profession is a difficult task. For

no matter what the final terminology decided upon, someone

24

25

will disagree. Seeley1 emphasizes this point by saying
that the complexities of what is actually intended by
planning "are a clouded clarity." Whatever definition is
adopted, however, must both mark a position and define a
strategy. The position must be reasonably defensible,
and the strategy reasonably productive.

Planning is generally defined today as the work of
those engaged in efforts within a delimited geographic
area, ranging from a neighborhood to an international re-
gion. It serves a democratic society by outlining pro-
grams to identify and order the physical, social, and
economic relationship essential to the attainment of the
goals of that society and to coordinate the means by
which these goals are achieved.2

One of the most frequently cited and most compre-
hensive definitions of planning is Y. Dror's, "Planning
is the process of preparing a set of decisions for action
in the future, directed at achieving goals by optimal
3

means."

 

1John R. Seeley, "What is Planning? Definition and
Strategy," Journal of the American Institute of Planners,
Vol. 28, No. 2 (May, 1962), 91.

2American Institute of Planners, Report by AIP Com-
mittee on Restatement of Institute Purposes, March 15,
1966, AIP Newsletter, April, 1966, p. 3.

 

3Yehezkel Dror, "The Planning Process: a Facet
Design (1)," International Review Admin. Services, Vol.
29, No. 1 (196?), H5458-

26

For purposes of clarification in understanding and
studying the complexity of the planning process, Dror
divides the definition into seven different elements.
(1) Planning, being a process, is a continuous activity
taking place within some time dimension and requiring
some input of resources and energy. (2) Planning is a

process of preparing a set of decisions to be approved

 

and executed by some other organs. (3) The process in-
volved is one of preparing a set of interdependent, se-
quential and systematically related decisions. (A) In

planning, the set Of decisions for action is directed

 

purely towards action and execution. They are not con—
cerned with secondary results such as better decision
making, improving public relations or training in team-_

work. (5) Since the process takes place in the future,

 

it introduces the elements of prediction and uncertainty
which condition all aspects, problems and features of

planning. (6) The action involved must be directed at

 

achieving goals. In order to Operate, the planning pro-
cess must define goals.

This does not mean that the planning process be-
gins to operate with clearly defined objectives.
Rather, in most cases, the first phase of the
planning process consists in the formulation of
Operational planning objectives on the basis of
rather ambiguous and undefined goals set before
the planning proofiss by some other, in most
cases, processes.

ulbid.

_

27

(7) The last element of Dror's definition states that
.these goals must be obtained "by Optimal means." The
planning process itself should suggest how these goals

should be obtained.

This term "process" is an old and well—known term
to the social sciences, but it still has certain dynamic
and constantly changing qualities. In contemporary plan-

ning thought, its usage suggests

a sequence of action which begins with establish-
ing certain goals, involves certain decisions as
to alternative ways of achieving these goals and
eventually takes the form of steps for carrying
out decisions, followed bg evaluation and perhaps
a new sequence of action.

Bolan concurs with this definition of process and extends

it into the realm of social and governmental involvement

when he states,

A number of recent probes into the nature of the
planning process suggest a new understanding of
social movements, governmental processes, al-
ternative "styles"of planning and, indeed, the
very nature of cognitive processes and ration-

ality.6

Because of the involvement and nature Of the pro—
cess, new understandings are constantly needed. The

American Institute of Planners' primary concern until

 

5F. Stuart Chapin, Jr., "Foundations of Urban Plan-
lming," in Urban Life and Form, ed. by Werner Z. Hirsch
CNeWIYork: Holt, Rinehart and Winston, Inc., 1963),
D. 22“.

6Richard S. Bolan, "Emerging Views Of Planning,"
anrrnal of the American Institute of Planners, Vol. 33,
PM). A (July, 1967), 233-

28

1967 was that planning should be a ". . . unified develop-
ment of urban communities and their environs . . . as
expressed through the determination of the comprehensive
arrangement of land and land occupancy and the regulation
thereof."7

The shift in definition, then, is from one which

centers upon the physical arrangement and regulation of
land and land occupancy to a "new comprehensiveness" that
involves and demands new understandings of all social
movement, economic development, environmental effects and
political implications. Present-day societal demands are
placing the emphasis on the social sphere.

Emphasis on "social planning" for new and old
cities, areas, and regions, corresponding to the
emphasis in recent years on physical planning,
can be expected. Growing interest . . . will
encourage more experiments in which physical
planning is subordinate to social planning--
but not without intense arguments and in-
fighting among the professionals and politi-
cians involved. However, as social planning
begins to demonstrate its capacity to smooth
social transitions and opegations it will be-
come more useful and used.

For social planning to succeed, Perlman assumes that

it

 

7Willard B. Hansen, "Metropolitan Planning and the
New Comprehensiveness," Journal of the American Institute
9: Planners, Vol. 3“, No. 5 (September, 1968), 295. See
also American Institute of Planners, Background Paper -
The Role of Metropolitan Planning, September, 1965.

8Donald N. Michael, "Urban Policy in the Rationalized
Society," Journal of the American Institute of Planners,
Vol. 31, No. TI (November, 1965), 283.

 

29

. will require, indeed will consist of, close
working relationships among planning professionals
and groups now concerned in somewhat uncoordinated
fashion with economic, social, physical,and polit-
ical matters. It is not likely that social plan-
ning will emerge fullgrown in the immediate future
from the matrix Of jurisdictions and disciplines
now engaged in planning. But movement in that
direction can be facilitated if attention is given
to strengthening cooperation between one element
and another in the matrix.

Perloff's expansion of "additive" planning activi-
ties will serve as a basis for summery.

From (1) an early stress on planning as concerned
chiefly with esthetics, planning came to be con-
ceived also in terms of (2) the efficient function-
ing of the city--in both the engineering and the
economic sense; then (3) as a means of controlling
the uses of land as a technique for developing a
sound land-use pattern; then (A) as a key element
in efficient governmental procedures; later (5)
as involving welfare considerations and stressing
the human element; and, more recently, (6) plan-
ning has come to be viewed as encompassing many
socio-economic and political, as well as physical,
elements that help to guide the functioning and
develOpment of the urban community.10

A significant trend in planning, then, has been this

shift from physical planning to more social planning.

Parallelling this need for social planning has been thg
need for better metrnnolitan planning of a neginnal nature
WWW.

 

9Robert Perlman, "Social Welfare Planning and Phys-
ical Planning," Journal of the American Institute of Plan-
ners, Vol. 32, NO. A (July, 1966), 237-2Al.

10Harvey S. Perloff, Education for Planning: City,
State, and Regional (Baltimore: John Hopkins Press,

TDS7), p. 12.

30

The "city," as we conceive it, no longer exists.
Gottmann's twenty-year study of the northeastern seaboard

concludes,

. . we must abandon the idea of the city as a
tightly settled and organized unit in which peo-
ple, activities, and riches are crowded into a
very small area clearly separated from its non-
urban surroundings. Every city in this region
spreads out far and wide around its original
nucleus; it grows amidst an irregularly colloidal
mixture of rural and suburban landscapes; it
melts on broad fronts with other mixtures, of
somewhat similar though different texture, be-
longing to the suburban neighborhoods of other
cities.11

Bollens and Schmandt concur.

The metropolitan area is in effect a new commun—
ity. Its boundaries often are hard to define.
In some instances they change and expand fre-
quently. The area ignors Old geographic bound-
aries, jumping over and around rivers and land
masses. It ignors the political lines of dis-
tricts, villages, towns, cities, counties and
states.12

Friedman and Miller state that

The inherited form of the city no longer corre-
sponds to reality. The spatial structure of
contemporary American civilization consists of
metropolitan core regions and intermetropolitan
peripheries. The former have achieved very
high levels of economic and cultural develop-
ment at the expense of the latter. . . . Cur-
rent and projected trends in technology and
tastes suggest that a new element of spatial

 

llJean Gottmann, Megalopolis (New York: The
Twentieth Century Fund, 1961), p. 5.

12John C. Bollens and Henry J. Schmandt, The Metro-

 

 

pplis: Its People,pPolitics, and Economic Life (New York:

Harper and Row, 1965), p. 33; Guiding Metropolitan
Growth (New York: Committee for Economic Development,

1960), p. 13.

 

 

31

order is coming into being--the urban field—-which

will unify both core and periphery within a simple

matrix.13

As the metropolitan area ignores Old boundaries, it

establishes a new area referred to today in planning
literature as a region. The idea of a region is not new
to planning, but the definition is as nebulous as the
description of the metropolitan area. Friedmann defines
a region as, "an elusive entity whose boundaries cannot
be drawn with precision . . . and whose spatial configu-
ration will change historically and according to the

purpose served."lu

 

For purposes of this study, a metropolitan area and
a region will have the same meaning and are defined as
that area which has as its central focus a metropolis
with its supra-urban space,,the metropolis' surrounding
nggn.

The key, then, to regional planning is the spatial
economic arrangement of multidimensional human resources,
guided by national influences.

Friedmann cites at least three common features of

regional planning.

 

l3John Friedmann and John Miller, "The Urban Field,"
gpurnal of the American Institute of Planners, Vol. 31,
No. A (November, 1965), 312-20.

l“John Friedmann, "Regional Development in Post-
Industrial Society," Journal of the American Institute of
Planners, Vol. 30, No. 2 (May, 1964), 8A.

32

1 Economic development appears as a leading Ob-
jective . . . Regional planning is therefore con-
cerned with long-term per capita gains in produc-
tivity and with the welfare implications of given
income distributions among areas.

2 Regional planning is not, in most instances,
an expression of cultural regionalism, . . . 0n
the contrary, regional planning usually attempts
to break down the separateness of regional struc-
tures and to integrate them functionally into the
national economy. In this sense, regional plan—
ning works with a dynamic concept in which the
region appears as a constellation of social and
economic forces subject to external influence

and change.

3 The far—reaching effects of many regional
problems brings them within the scope of national
policy and planning. Regional economic growth is
generally a matter as much of national as of local
policy determination.15

Friedmann elaborates by saying that "in an economy like
that of the United States, where service industries pre-
dominate and where spatial immobilities are progressively
losing their importance, regional development is pri-
marily a function of national influences."16
The cities remain the focal point of the region and

greatly influence the regional development. Doxiadis, in
discussing the city, says,

We deal with five elements in our cities. The

first element is Nature, we tend to overlook it

and this is why we have polluted air. The second

element is Man himself, as an individual with all

his values. The third element is Society, formed

by Man; while the fourth is the Shells, buildings,
houses and other man-made structures. The fifth

 

15John Friedmann, "Introduction," Journal of the
American Institute of Planners," Vol. 30, No. 2 (May,
196”), 82.

16Friedmann,"Regiona1 Development in Post-
Industrdal Society, p. 8A.

33

element is the Networks, which we also tend to
overlook and we often speak of Networks in terms
of transportation only. We have gradually learned
through experience that we should pay much greater
attention to the whole system of Networks, physi-
cal and managerial, by which our society Operates.
. . . For example, our cities are at an impasse,
because of a complete lack of understanding of

the importance of the systems of networks we
build.

The dynamic qualities of the city establish the re—
gion. Doxiadis illustrates this in his discussion of the
Detroit urban area and emphasizes the need for better

regional planning practices.

. . this urban area operates as one unit consist-
ing of 37 counties; 25 in Michigan, 9 in Ohio (in-
cluding the whole Toledo area) and 3 in Canada.
People commute daily within this area and identify
with the nearest city through many functions of
commerce, trade, communications, etc. In this way
the area of influence of each major urban system
can be defined. How can we expect this structure
initially designed for two hundred thousand people
to serve 7 1/2 million people? We cannot expect
it, and it does not work. . . . As a result of
this, the city-structure has to be changed.18

A study of the area between Detroit and Chicago suggests
that one city might be established here before the year
2000. A study of the area between Detroit and Flint re-
veals that more than 55% of the land between these two

cities has been purchased and committed for urban pur-

poses.

 

170. A. Doxiadis, "Preparing Ourselves for the City
of Tkxnorrow," EKISTICS, Vol. 27, No. 161 (April, 1969),
27“.

18Ibid.

3“

We must revise our thinking and start building for
the future on the basis of what is happening now
and what we should expect to happen. [Doxiadis
emphasizes the point that] Urban forces proceed
much more quickly and much earlier than the physi-
cal construction of the city. [He reminds us
that] We must be prepared for very great disap-
pointments for as long as we are unable to face
the system as a whole, and are thus unable to
remodel it in accordance with the needs of our
society.19

There is little question that planning agencies
will have to focus much of their attention on regional
aspects in the near future. There remains, however,
much work to be done in the construction of techniques
for regional planning.

Public policy has thus become concerned with the
manner and pace of economic development of sub-
national areas, [regions] . . . But the conceptual
structure necessary for the intelligent making of
policy is in its infancy. The social sciences,
principally economics and sociology, have been
laggard in taking notice of space; while geo-
graphy, which has always dealt with space, has
lacked analytic power. . . . If our knowledge

were more advanced, we could write a textbook,
epitomizing and codifying principles in ordered
cadences. The time may come, in a decade or two,
when this can be done; but the topic is an urgent
one, both for the technician and for those charged
with responsibility for making decisions.20

We must now discuss the current recommendations and
proposals needed for regional planning to develop the
policies which will implement necessary and effective

change.

 

19Ib1d., pp. 275—278.

20John Friedmann and William Alonso, eds., RegiOnal
[Navelgpment and Planning (Cambridge: The MIT Press,
196D), p. l.

 

35

Planning: A Governmental Function
Planning today is considered a governmental function

at the municipal, state and federal levels. Current plan-
ning literature is filled with recommendations and pro—
posals supporting intergovernmental involvement of the
planning profession, especially in those processes con-
cerned with regional planning. When planning of a regional
nature is discussed as a governmental function, a challenge
is posed to the federal system. The federal system was
designed to distribute the powers Of collective decision
making among its parts. Regional planning, to become
successful and effective, must seek to integrate powers
and coordinate the4parts. With this in mind, this section
of the chapter will serve to review some Of the pertinent
recommendations and proposals on how regional planning
might effectively be integrated into governmental func-
tions. The problem is how to develop means to coordinate
intergovernmental activities within a region. The state
is in a unique position to contribute to this.

The growing complexity and interaction of deci-

sions concerning development made at different

levels of American government make coordination

more difficult and also more necessary . . .

The states, with their inherent sovereignty and

strong political powers, are important building
blocks which must be used in the nation's de-

velopment process.21

 

21Robert S. Herman, "State Planning and Development
in a Federal System," in Rpgional Accounts for Polipy
Decisions, Committee on Regional Accounts, ed. by Werner
Z. Hirsch (Baltimore: Johns Hopkins Press, 1966), p. 132.

 

36

We are aware that,

State Planning in the United States is entering
upon a new phase. After years of concern with
resource conservation, industrial promotion,
and local planning assistance, it is reaching
out boldly in the direction of comprehensive
economic and physical development, with a focus
on the metropolitan region.2

For this comprehensiveness to develop effectively,
however, changes in working relationships between gov-
ernmental units must occur.

Central to all else is the relation of the state
government to its local subdivisions. Since all
municipalities are "creatures of the state," the
nature Of local government is determined by the
state. The fiscal power of local government is
determined by the state. The jurisdictional
boundaries of local government units are deter-
mined by the state. The allocation Of functional
responsibilities between state and local parts of
the governmental system is determined by the
state. A state constitution, therefore, is a
constitution for all local governments in a state
as well as for the state itself.23

The modernization of state governments is essential
if effective regional planning is ever to occur.

Because of the increasing interdependence of
local jurisdictions, the role of the states
must grow if they are to be strong and effec-
tive partners in the federal system. The
states should encourage greater cooperation
and coordination among local governments in
solving metropolitan problems. In many areas

 

22John Dyckman, "State Development Planning: The
California Case," Journal of the American Institute of
Planners, Vol. 30, No. 2 (May, 196”), 1AA.

23Alan K. Campbell, "A New Constitution for New
York," in Modernizing State Government, Proceedings of
the Academy of Political Science, Vol. 28, No. 3,
January, 1967, p. 9-

 

37 ‘
taxpaying ability is greatest in the suburbs but
needs are greatest in the central cities.2
A whole new philosophy is required of state governments in
coordinating, communicating and sharing responsibilities
before regional planning is possible under federalism.

A review of planning legislation of the past five
years shows that many states are centralizing statewide
planning activities in the Office of the Governor. The
same review also reveals a marked increase in state
legislative activity in the field of regional and metro-
politan planning. There can be little doubt that planning
is now considered a governmental function. One of the
most significant reasons for this has been "701 funds."
These funds are federal monies offered to the states for
planning activities. They are authorized under the Hous-
ing Act of 195A (Public Act 560, Title VII, Section 701).

Legislative activity starts in the form of pro-
posals and recommendations. One of the basic and most
frequently cited documents on intergovernmental recom-
mendations is State Responsibility In Urban Regional

Development.

 

 

2”A Fiscal Program for a Balanced Federalism, A

statement on National Policy by the Research and Policy
Committee, Committee for Economic Development (New York:
1967), p. 30.

38

This document deals with

the apprOpriate roles for the different levels of
government; the various approaches to urban re-
gional development; the leadership role of state
government in forward planning and in coordina—
tion of state, local, and federal activities in
urban regional development; and constitutional
and statutory provisions needed for the exercise
of such state leadership.25

To assist the states in resolving the problems of
urban regional development, the committee reported to the
1962 Annual Meeting of the Governor's Conference that

—Urban growth presents one of the most important
political and governmental problems of our day

. . . An increasing number reside in the metro-
politan suburbs rather than in the central cities.
There are a multiplicity of overlapping govern-
mental units and a fragmentation of responsi-
bilities.

 

—It is expected that the areas and populations
within urbanized areas will continue to increase.

—Solutions to America's countless urban regional
development problems can only be accomplished
through joint governmental effort.

—The state is in fact, an established regional
form of government. It occupies a unique vantage
point, broad enough to allow it to view develop-
ments within its boundaries as part of an inter-
related system, yet close enough to enable it to
treat urban regional problems individually and

at first hand.

-The state's principal task may be to equip local
governments with a wide assortment of permissive
powers.

-The advance consideration of future problems——
planning—~18 the means by which the stage can be

 

25State Responsibility In Urban Regional DevelOp—
”rent (Chicago: The Council of State Governments, 1962),
p . vii.

 

39

set for determining government policies and under-
taking public programs. A consistent framework for
the social, economic and physical development of
our urban areas is needed, based on a total plan-
ning effort by local, state and federal govern-
ments.

-Loca1 planning activity now under way is of in—
adequate quality.

-The Federal Urban Planning Assistance Program,
under Section 701 of the 195“ Housing Act, has

had significant impact on local planning. Orig-
inally conceived as a modest attempt to strengthen
the concept of urban renewal, the act has been
expanded to include federal financial assistance to
planning projects in small communities, to metro-
politan and regional planning agencies, to feder-
ally impacted areas, to state planning agencies,
and to economically depressed areas.

—Local units in many states need additional legis-
lative authorization to enable them to organize
for planning, to use planning techniques effec-
tively and to administer planning controls.

-The best local planning, even if well coordi-
nated at a regional or metropolitan level, is
not in itself adequate unless there is effective
planning by the state as a whole. The need for
comprehensive statewide planning, relating local
and regional needs to state policies, is largely
unmet by many states.

-In addition to preparing a comprehensive devel-
opment plan, a state planning unit should be
charged with coordinating statewide physical
develOpment programs.

-The traditional home rule concept can be modified
to meet current needs by allowing local home rule
for strictly local problems and metropolitan home
rule for area-wide problems--with the state free
to act on problems which transcend county bound-
aries and which are not soluble through inter-
local cooperation.

-Study commissions can be utilized by people re-
siding in metropolitan areas to examine and, if
they so desire, initiate action to change their

. u_v-.‘— -; I —-.- r—n-u—n —r l A
I

 

A0

local government structures so that area—wide
needs can be met.

-A new concept is to empower independent metro-
politan districts to perform a number of func-
tions, making them multi-purpose in character,
thus, in effect, converting them into general
governments of metropolitan scope.2

This document has been fundamental in the develop-
ment of current recommendations which may become legisla~
tion in the near future.

The American Institute of Planners' third biennial
Government Relations and Planning Policy Conference held
in January, 1965, had as its theme, "Emerging Regional
Cities of America." The purpose of the conference was to
think out the challenges that face the governments of
America. Following this conference, the Institute pub-
lished The Structure of Planning and Regional Development,
in which the following recommendations were made.

At the National Level

a. A Presidential Commission should be estab-
lished to formulate a statement of national
interest and goals for urban development.

The Commission should be charged with the
analyses and investigation of current urban re—
gional growth patterns on a nationwide basis.

b. The Federal government should accept its

responsibility for the comprehensive planning

and coordination of Federal programs influencing

urban development.
The Institute should support the recommend-

ation of the Advisory Commission on Inter—
governmental Relations that all Federal

 

26Ibid., pp. xvi—xx.

 

A1

assistance programs for urban development be chan—
neled through the states, provided that the indi-
vidual states have a demonstrable capability to
qualify.

Recommendations at the State Level

 

a. It is recommended that the American Institute
of Planners' National Standing Committee on State
Planning be directed to reassess Institute policy
on State Planning with regard to the new dimension
of state leadership in regional develOpment . .

b. The states are encouraged to establish agen-
cies for regional development to provide for con-
tinuing state leadership in the guidance of re-
gional growth. . .

It is further recommended that the states,
through the Council of State Governments or by
individual action, analyze the current effect of
state government planning and zoning enabling
legislation on regional growth and development.

Recommendations at the Local Level

 

a. Metropolitan and county planning powers need
to be strengthened particularly in regard to broad
land develOpment regulations. It is recommended
that the states pass legislation requiring the
establishment of metropolitan development coun-
cils to provide for effective regional action by
local governments in standard metropolitan areas
consisting of more than one county unit.

To summarize progress being made in the reshaping of

our governmental structure, especially in the metropolitan

areas, a recent research and policy statement by the
Committee for Economic Development is cited.
Advocates of area-wide government are con-

vinced that the changes they seek will some day
materialize. . . . Several develOpments support

 

27Emerging Regional Cities, American Institute of
Planners, Government Relations and Planning - Policy
Conference (Washington, D.C.: 1965), pp. 15—16.

 

A2

their optimism: (1) federal assistance for the
rapidly growing number of metropolitan councils
of government and metropolitan regional planning
agencies; (2) growing use of county home rule
charters in single-county metropolitan areas;

(3) adoption by many urban counties of executive-
headed governments; (A) interagency--city, state,
and federal--coordination through such programs
as model cities; and (5) increasing intergovern-
mental cooperation.

In reality, "The plain fact is that plans are poli—
cies and policies, if they are to be more than pipe

dreams, must be politics."29

Time will allow close observation of legislative
activities which is the only means of evaluating how far
these recommendations and proposals will progress.

Planning Recommendations and Proposals
in Michigan

To illustrate and clarify regional planning efforts,
specific recommendations and proposals in Michigan will
be discussed. Michigan shows many of the causative fac-
tors which increase the necessity for comprehensive re-
gional planning. Of special significance is the tre-
mendous increase in population, especially in the

metropolitan areas. Table 1 will provide pertinent facts

concerning population growth.

 

28Reshaping Government in Metropolitan Areas (New
York: Committee for Economic Development, 1970),

p. A2.

29Proceedings - American Institute of Planners,
Annual Conference (Washington, D.C.: 1963), p. 183.

“3

TABLE 1.--Population of Michigan's Standard Metropolitan
Statistical Areas.

 

 

 

 

 

1960 1970 1980

City Of Detroit 1,670,1uu 1,678,393 1,681,002
Balance of Area 2,092,216 2,A95,33A 3,110,19A

Total Detroit Area 3,762,360 u,173,727 u,791,196
Ann Arbor 172,ANO 221,832 300,382
Bay City 107,0u2 108,321 117,330
Flint 37u,313 u61,6u3 553,988
Grand Rapids 363,187 uou,155 u59,u53
Jackson 131,99“ l3u,34u 1AA,1A6
Kalamazoo 169,712 191,659 222,128
Lansing 298,9u9 360,055 A22,25u
Muskegon 1A9,9A3 155,867 171,506
Saginaw 190,752 215,087 2A5,221

Total SMSA

Population 5,720,692 6,A26,690 7,A27,60A

Total State

Population 7,823,19u 8,6u5,200 9,868,000
% of State POpu-
lation in 10
SMSA's 73.12 74.3“ 75.27
Detroit SMSA “8.09 ”8.28 48.55

 

 

 

 

Sources: 1960 Statistics, U. S. Bureau of the Census;
1970 and 1980 Projections, Office Of Planning
Coordination, Michigan Department of Commerce
(Based on 1960 Data).

 

30

 

Urban Growth and Problems, Report to Governor

Georgfi Romney by the Special Commission on Urban Prob-

lems, State of Michigan, 1968, p. 2.

AA

-In the twenty-year period from 1960 to 1980, it
is projected that 83.A7% of Michigan's population
will be concentrated in these ten areas, and
A8.78% in the Detroit Metropolitan Area exclusive
of the City of Detroit.31

Population growth alone does not create the multi-
plicity Of urban problems, but it does worsen the urban
Situation unless positive steps are taken to assimilate
the added numbers into a regional development pattern.
Therefore, in December, 1966, George Romney, then governor
of Michigan, established by Executive Order (No. 1966-1Aa)
a Michigan Commission on Urban Problems, to study the
problems of the urban areas of Michigan and to recommend
programs for possible action. This commission was finan—
cially aided under the Urban Planning Assistance Program
authorized by Section 701 of the Housing Act of 195A, as
amended.

This commission was divided into six committees;
Government Organization and Structure, Planning, Socio-
Economic Problems, Housing and Urban Development, Trans-
portation and Finance. The recommendations of the first
two committees are of special significance to this study
and will be cited.

The Report of the Committee on Government Organi-

zation and Structure emphasized that today:

. with the influx of population into the
existing urban centers and the spilling over of

 

31Ibid., p. 3.

 

this population into the surrounding countryside,
the lines of demarcation - the rural areas - be-
tween one urban center and another have been
pretty well obliterated.

The Committee recommended that the state should:

(A) authorize a thorough, in-depth study of the
organization, structure, and powers of local
government;

(B) enact a broad, meaningful County Home Rule
law;

(C) establish guides for the creation of multi-
purpose authorities and special districts; and
(D) create a Boundary Commission with the power
to disapprove proposed annexations, incorpora-
tions, and consolidations which would not pro—
vide for new governmental units having an ade-
quate size and tax base for the carrying out of
its responsibilities.

 

Recommendation NO. 1

Local units of government in Michigan should be
given greater authority than now possessed to
join together on common programs.

Recommendation No. 2

Local units of government should be given greater
authority to transfer functions to other units of
government, subject to agreement of the governing
bodies Of the units involved.

Recommendation No. 3
The State, through effective legislation, should
encourage local government units to form and/or
to join voluntary councils of governments.
Recommendation NO. A
The state should establish an Office in Washington
for the purpose of facilitating relationships be-
tween State agencies and Federal agencies.

Recommendation No. 5

a. The State should require local units of
government to submit applications for Federal

A6

grants-in-aid to a State agency or, where
appropriate, the regional agency designated
by the State for review, comment, and ap-
proval.

b. In strictly local programs, the State should
require prior review, comment, and approval
of local applications for Federal grants-in-
aid only if it contributes a share of the
non-Federal costs of the project.

Recommendation No. 6

The State should create a Department of Community
Affairs to a. coordinate the urban policies of
the State; b. coordinate the activities of vari-
ous State departments involved in urban matters
and having relations with urban units; c. provide
technical assistance to local units of government
in preparing applications for State and Federal
grants-in-aid; d. provide technical assistance to
local units in various governmental functions;

e. encourage and assist local units of government
to transfer functions to other units and/or to
develop contractual agreements; f. mediate con-
flicts between local units of government; and

g. carry out operating urban programs that can-
not appropriately be assigned to existing State
agencies. 2

Report of the Committee on Planning:

Planning can help achieve livability if it is
carried on with a full and sensitive awareness
of the realities of urban problems and a deter-
mination to replace them with urban promise.
Such planning must be truly comprehensive in
scope, treating all the problems of the urban
revolution wherever they are found -

The Committee, therefore, recommends that -
the State Legislature provide an effective
State planning function in accordance with the
following outline:

1. Since the prime responsibility for state
planning lies with the Governor, a comprehensive

 

32Ibid., pp. 20-33.

- ‘l' ._u- _—I

 

A7

State Planning Agency should be established in the
Executive Office of the Governor.

2. The State Planning Agency should be charged
with the preparation of a State comprehensive
development plan through a central State planning
staff.

3. The State Legislature should provide an effec—
tive regional planning function.

A. The State Legislature should supplement exist- I
ing county planning legislation to provide effec-
tive county planning.

5. The State Legislature should supplement exist-
ing municipal planning legislation to provide an
effective municipal planning function. 3

Another significant document financially aided by

 

701 funds suggests the approach Michigan well might
follow in future planning activities. In February, 1968,
Technical Report No. 1A, Planning and Development Regions

for Michigan, established the rationale and techniques for

 

comprehensive planning and development on a regional

basis.

These regions are intended to be used for two pur—
poses: first, as a regional framework for the
coordination of functional planning activities of
state agencies, and second as the focus of plan-
ning by regional agencies.3u

The following excerpts taken from Technical Report

No. 1A conclude that planning and policy—making on a

 

331bid., pp. 35-u1.

3“Planning and Development Regions for Michigan,
Office of Planning Coordination, Bureau of Planning and
Program Development, Executive Office Of the Governor,
Technical Report No. 1A, February, 1968, p. l.

A8

regional basis is needed because many development problems
extend beyond the juristiction of local governments, but
are sufficiently localized as to preclude effective handl-
ing by the state or federal government.

In order to serve effectively as the focus of policy-
making at the regional scale, the regions should repre-

sent, as closely as possible, regional "communities of

l‘dL‘T 5 Km Agni-‘1

interest," rather than arbitrary divisions of the state.
There are presently only two levels of government in

Michigan where plans and policies can be translated into

 

allflah HP

action programs--the state level and the local level.
Neither of these is well suited to policy development for
problems of a regional nature. A new level of planning
and policy-making is needed at the regional scale.

Currently, the state must deal directly with hun-
dreds of local governments and ad hoc local agencies. The
regional approach could stimulate the greater use of re-
gional planning and development agencies responsible to
directly elected local officials.

The end result of the continuing working relation—
ship between the state and regional agencies would be
the regional plans and the state comprehensive develOp-
ment process. The planning process would provide basic
policy guidelines for development programs of the state,
its regions, and its localities, modified from time to

time to meet new problems and changing conditions.

A9

The foregoing conceives the state comprehensive plan-
ning process as a system of planning in which all three
1evels--state, regions and localities--participate in the
formulation and implementation of policy. "One of the
main purposes of the state comppehensive planning process
is to provide guidelines for coordinating the varied pro-
grams of state government."35

The delineation and establishment of planning re-

gions in Michigan has been defined in this report. How-

 

ever, most important for the purpose of this study is

a“ ' 1‘

the type of region most suitable as a focus of
planning and policy-making at the sub-state
level is the urban—centered region, for cities
are not only concentrations Of people—-they are
the regiogal centers of production, trade, and
culture.3

The 1A regions shown on Map l vary in size and in
number Of counties. In most cases, however, the selec-
tion of boundaries were considered in relation to the
urban influence within that particular region.

The dots on the map show regional centers. Second-
ary centers are shown by smaller dots, which have some
regional significance but to a lesser degree than the
primary centers (larger dots). This overview of the

Michigan involvement in comprehensive planning activities

is indicative of what is happening generally in the field.

 

35Ibid., p. 16.

36Ibld., p. 21.

50
MAP 1

STATE PLANNING REGIONS

  

 

 
 

I
,— ._ _. __.‘ r_ __., __ - __.-
I warm ‘ ”coo. . Aziku

 

 

O REGIONAL CENTER

 

 

 

O SECONDARY CENTER

 

51

By way of summary, it must be remembered that what—
ever definition is chosen for planning, it must be compre—
hensive in nature, involving the social, economic, physi-
cal and political influences of a region. Provisions that
enable the profession to serve as a coordinating agency
among the various sub-systems of the larger whole must be
included. Provisions for evaluation and change to meet
new needs should be included, also.

It is hoped that this overview of planning will pro—

vide the different components or sub—systems the general

ii‘Maq-n-e—fi

understanding necessary to Offer them the opportunity of
coordinating their various efforts into a comprehensive
plan.

It is further hoped that this understanding will
enable educators to make valuable contributions to these
planning efforts so that, in the end, the resulting com—
prehensive plan will truly include the means for implement-
ing educational needs and desires in a practical, realis-

tic manner.

CHAPTER III

THE MEANING AND SIGNIFICANCE

OF THE IDENTIFIED FACTORS

Introduction
The comprehensive planning process utilizes a number

of basic studies, data collections and special approaches

 

to construct the goals and objectives of comprehensive

plans. This chapter focuses upon these elements and the

tools necessary for the implementation of the comprehensive

planning process.

It would be an impossible task, within the scope of
this chapter to discuss these elements of the comprehensive

tolanning process in detail, for each of them is extremely

(zomplex. But non-planners must be aware of these factors

l)efore any framework can be developed.
The initial section will describe basic population,

economic, environmental and land use studies and special

aF’Loroaches, utilized by the planning profession. The

secyond section will focus on the development of the com—
.pretdensive plan by discussing its developmental objectives

aunt goals. The final section will briefly describe some

of t:»he "tools" necessary for the implementation of com-

prehif ensive plans.

52

53

Population Studies

 

Analysis and projection of pOpulation are at the
base of almost all major planning decisions. As
measures of the size and density of the various
groups within the urban or regional population,
they determine the level of demand for future
facilities and serve as indices of most urban and
regional problems. Since no other local agency
normally provides projection data in a way that
is useful for these purposes, the responsibility
falls to the local planning office. . . . Perhaps
the most serious criticism that can be made of
most contemporary work by planners in the area

of population studies is that little attention is
given to the interrelationships between popula-
tion variables and other factors.

There are many types of population studies and pro—
jections made today. Comparative forecasting, projection
by graphic techniques and mathematical functions, ratio
and correlation methods, growth composition analyses and
.a variety of studies concerned with migration estimates
{are methods and techniques used. All of these methods of
study have both strengths and weaknesses and it is the job
oi‘the demographer and the comprehensive planning pro—
fessional, especially trained in the use of population
studies, to determine which method is best suited to the
situation being studied.

The problem at hand and the region under study are

two of the most influential factors determining
the choice of the most appropriate population

1William I. Goodman and Eric C. Freund, eds.,
fzgrz ciples and Practice of Urban Planning (Washington,
D C _;1 International City Managers' Association, 1968),
P- 5 .

r r-fififli ____._._ ‘u _a_.______.._.____g

5A

projection method to be used in a given situation.
Only in this sense can one technique be judged

superior to another.‘

To simplify the great complexity of population
Studies, there are some necessary common elements that
they should exhibit to be meaningful to planning.

Chapin3 states that they must first estimate the current
population, second, have the ability to forecast popula-
tion and third, be able to analyze the composition and
distribution of the population.

All studies for forecasting population either ex—
plicitly or implicitly deal with births, deaths and
migrations. To be truly useful to comprehensive planners,
however, the sophistication level of the studies must go
beyond natural increase and migration estimates. Popula—
tion studies must provide a breakdown into respective age,

ssex, race and income groupings. It is the comprehensive

I)1anner's task then to synthesize these numbers and re—
lJate them to the economic,social and political indices

of the area in order to obtain a more accurate projection.
No matter how sophisticated the study, however, it can

INTVer be assumed that population forecasts will be

 

CW.

2Walter Isard, ed., Methods of Regional Analysis:
An :[ntroduction to Regional Science (New York: MIT
Presss and John Wiley & Sons, Inc., 1960), p. 32.

3F. Stuart Chapin, Jr., Urban Land Use Planning
(Urta-ana: University of Illinois Press, 1965), p. 182.

55

correct. Therefore, most studies indicate both high and
low estimates.

Since the end result of comprehensive planning is to
give people a desirable place to live, an understanding of
DOpulation growth and composition is a basic necessity.
Whatever type of study is used, it should have provisions
for estimating natural increase and migration and contain
a breakdown of respective age, sex, race and income group-
ings in order to truly reflect the study area, and con-

tribute to an understanding of the needs of the area.

Economic Studies
Economic studies are not as common or as well known
to educators as are population studies. But as was estab-
lished in Chapter II they are of prime importance, es-
pecially to the concept Of regional development. It is
the economy of a region that determines its future growth
sand develOpment. Economic studies usually have two main
purposes or objectives related especially to comprehensive
planning. First, they must provide information about the
economy of the region so the comprehensive planner may
de-termine goals and Objectives. Second, they must pro-
vhde quantitative estimates concerning future employment
Opprortunities. Employment opportunities have great in—
fhzcsnce on the amount and breakdown of population a

reg;:ion.has or is expected to have.

56

As planners review economic studies they are usually
asking a series of six questions:
1. Why does the community exist?

2. What are the principle causes of change in the
economy?

3. What are the most important forms Of imbalance
in the community economy?

A. How can the imbalances of the economy be
remedied?

5. How can economic problem remedies be expressed
as community development targets?

6. How do the facts of community economic struc—
ture, problems, problem remedies, and targets .
relate to other community problemfi and targets 4
in which the planner is involved?

 

The complexity of conducting an extensive economic
study is great. Therefore, these studies are usually done
by trained economists. Studies of economic base, input-
output, income and social accounting and industrial com-
plex are the most frequently used by comprehensive plan—
ners.

The economic base technique is the Oldest used to
classify an urban region. The region's economy is con-
sidered to be composed of an export sector and a residual
sector. The first is often called the basic sector be-
cause it produces goods and services for export to other
regions and thereby brings revenue into the region. The

residual sector or local market seeks to provide services

 

“Goodman and Freund, Principles and Practice of
Urban Planning, pp. 77—78.

 

 

57

and goods which are produced and consumed within the re-
gion thereby recirculating monies within the region. For
this reason one of the most important components of an
economic base study especially in relation to regional
develOpment is the delineation of the area to be studied
in order to determine the basic and residual sectors.

A second economic technique for studying an area is
the input-output method. Because of the nature Of the
relationship a region must have to the national economy,
the input—output theory is gaining prominence. Designed
to study the production and distribution of industries in
different regions, the theory simply states that one type
of economic activity has a measurable relationship to
every other industry in a national economy. To under-
stand the total picture of an economy, detailed informa-
tion about production and distribution of goods and ser-
vices for each sector of the economy must be obtained.

Income and social accOunting, another method, is
one of the newest economic techniques utilized today by
comprehensive planners. It is based on the source, dis-
tribution, volume and trends of income. It is not unlike
input-output techniques for it does account for money
exchange between one economic region and the next. It is
based on the relationship the regional account has to the
Gross National Product. This technique should gain

momentum as regional development progresses. It will

“7.". 1 u! ‘w

 

also provide the comprehensive planner a better understand- .
ing of income and flow of goods within his region and the
relationship his region has to other regions.

The only economic system not of a comprehensive
nature is Industrial Complex Analysis. This system focuses
upon selected industrial complexes which represent a set
of activities occurring within a given region. The infor-
mation planners seek from this type of system are the
locational activity patterns of an industrial group and

industrial development patterns. It is especially useful

I and. mm Emma

in studying the potential development pattern of a region
and the employment potential of that region.

These studies, like the population studies, are ex-
tremely complex and remain in the realm of the trained
economists for final interpretation. These interpreta-
tions are extremely important to the planner, for economic
trends may not be visual to the untrained observer.
Changes in economic activities within a region vitally
affect the employment Of its residents, and the employment
prospectives of a region help determine the population

breakdown of the area for which the plans are being de-
veloped.
Environmental and Land Use Studies

Due to the growth of metropolitan regions, environ—

Inental_zand land use studies are extremely important today.

59

The physical development of the land and its use still re—
mains foremost in the minds of comprehensive planners.
This is not to say that social planning is secondary but
rather emphasizes the point that good physical planning is
essential to the social welfare of people living within
'metrOpOlitan regions. 3

Land use studies are tied directly to the economic
activities and population densities and shifts within an
area. Planning for the maximum use of the land depends

upon sound economic and population projections to gain an

 

understanding of the types of land needed for all human
activities.

Chapin5 lists nine types of background studies which
furnish information related to the use, nonuse and misuse
of urban land which are necessary for decision making in
the planning process.

1. Compilation of data on physiographic features,
mapping the urban setting.

2. The land use survey.

3. The vacant land survey.

A. Hydrological and flood potential survey.

5. Structural and environmental quality survey.
6. Cost-revenue studies of land use.

7. Land value studies.

 

5Chapin, Urban Land Use Planning, p. 25A.

60

8. Studies of aesthetic features of the urban
area.

9. Studies of public attitudes and preferences
regarding land use.

The extent to which these types of studies are con-
ducted will determine how detailed and complete the land

use plan will be. This plan is a key component in how}

a. I!

well the comprehensive plan meets the needs and objectives
of the people. Thus planning for economic develOpment I
through the optimal use of human and environmental re-

sources is one Of the greatest challenges comprehensive

 

planners face today.

Tranpportation

 

Another key factor tied directly to planning for
land use is transportation planning. Today transportation
planning is concerned with the total movement of goods,
activities and people. The studies focus on all modes of
transport and all types of movements. They study the
feasibility of intra-city travel as well as the accessi-
bility to outside markets. Thus transportation studies
are concerned with private as well as public facilities.

Transportation studies start by looking historically
at the development of existing transportation networks
and then estimate future requirements by forecasting human
movements and activities in relation to future economic
development, shipping patterns and recreational desires,

which influence travel both to and from their area.

61

Open Space and Recreation

Much emphasis is being placed on the need for open-
space and recreational lands. Comprehensive planners must
be aware of and work to incorporate these into the compre-
hensive plan, especially in our metropolitan regions.

Open space studies should include an examination of
available physical resources, human needs and institutional
capabilities, and then develop goals and objectives for
the comprehensive plan which will meet these human needs

and protect the resource base.

Other Public Facilities

Municipal facilities are another important component
of land use. They comprise the public lands and buildings
that add to the activities and quality of life in an area.
Schools, libraries, health facilities, administrative
centers, civic centers, and service agencies such as fire,
police, sanitation, water, power and sewer systems are
studied to provide an understanding of their services so
that coordinated activities providing for maximum usage
may be incorporated within the scope of the comprehensive

plan.

Special Approaches: Appearance
and Social Planning

Appearance is an important factor that must be con—

sidered in the development of the comprehensive plan. The

 

62

aesthetic quality and spatial arrangement of an area is
immensely important to the peOple who must live in and
move through the area. Comprehensive planners as well
as architects are concerned with the physical arrangement
of buildings, streets and parks, etc. within a given loca-
tion.

The key role the environment plays in the physical,
emotional and intellectual development of a child must not
be overlooked when planning metropolitan areas. Compre-

hensive planners today are focusing on recent research

 

findings concerning the effect of environment on humans
and are incorporating these findings into their planning
efforts.

Social planning aims to gain an understanding of the
basic living and working needs of the people within an
area so as to reflect provisions for those needs in the
goals and objectives of the comprehensive plan. Compre-
hensive planners must enter the realm of the social
scientist in developing an understanding Of the social
forces and systems at work within the area. This is where
educators can become directly involved in the_planning
process by providing insights into educational objectives

and needs. With deeper understanding, the comprehensive

 

planner then seeks new ways to incorporate these needs
into the physical and fiscal policies of the area he

serves .

63

Social planning, to be effective, must somehow in-
corporate the values of all people. How the planning pro-
fessional can incorporate these values into his compre-
hensive plan only time will tell. The framework to be
established in this study may provide educators the back-
ground to help in this task.

The complexity of these studies requires the work
of experts. The comprehensive planner's main function is
to act as a synthesizing and coordinating aggnt whose pur-

pose is to take population projections, economic forecasts,

 

land uses, and relate these to goal and objective develop-
ment so that plans will truly reflect social needs in an

aesthetic manner.

DevelOpment of the Comprehensive Plan
The ideal of comprehensive planning is:

(l) to create a master plan to guide the delibera-
tions of specialist planners, (2) to evaluate the
proposals of specialist planners in the light of
the master plan, and (3) to coordinate the planning
of specialist agencies so as to ensure that their
proposals reinforce each other to further the pub-
lic interest. Each of these functions requires
for ideal performance that the comprehensive
planners (a) understand the overall public in—
terest, at least in connection with the subject
matter of their plans, and (b) that they possess
causal knowledge which enables them to gauge the
approximate net effect of proposed actions on the
public interest.6

 

6Alan Altshuler, The City Planning Process: A
Political Analysis (Ithaca, N.Y.: Cornell University
Press, 19657, p- 299-

 

6A

The basic governing policy of comprehensive planning
then is to adppt a course of action directed toward the
achievement and attainment of goals and Objectives which
reflect the desired interests of the area being served.

A comprehensive plan may be derived for any area; a
country, state or region either intrastate or interstate,
a county, city, township or village. Therefore, when dis-
cussing a comprehensive plan, one must state the planning
area. The terms Master Plan and General Plan are used
synonymously with Comprehensive Plan but the term Compre—
hensive Plan is more contemporary and more frequently
used today.

A Comprehensive Plan is an official public document
adOpted by a governmental unit as a policy for making de-
cisions about the future development of a particular area.
It is comprehensive in that it encompasses the social,
economic, political and physical sectors of an area. It
is general in that it indicates general administrative
action in the form of proposals and policies. It is long
range including, but looking beyond, current issues to
developmental possibilities for the next 20-30 years. It
is not necessarily, however, a piece of legislation, al-
though it is often used for legislative information and
advice.

Comprehensive planning is generally divided into

four processes.

 

65

1. Survey and analysis, or collection of basic
data related to physical, economic, and social
conditions.

2. Goal formulation, or identification of and
agreement upon social and economic Objectives.

3. Plan making, or determination of suitable uses
and densities for specific areas and for the
circulation system and public facilities.

A. Plan effectuation, or legal and administrative
tools to carry out the plan and to coordinate
decisions.7

The factors involved in the collecting of basic data
for the survey and analysis process have been identified

and defined briefly. The second process, that of goal

 

“I“ “A

formulation, synthesizes the findings of the basic studies
into the goals essential to the third phase, that of plan
making.

The Comprehensive Plan itself, then, is a document
that provides information about the present social,
economic, and physical resources of an area. It attempts
to outline the goals and objectives agreed upon by the
people in that area. It proposes developmental schemes
to obtain the goals and objectives at some later date.

It must serve to test and evaluate the developmental
schemes. It must suggest the tools of implementation
necessary for the attainment of its goals. Thus, the com-

prehensive plan is a long, involved document which

 

7William I. Goodman and Jerome L. Kaufman, City
Planning in the Sixties - A Restatement of Principles and
Techniques (Urbana: University of Illinois, 1965), p. 5.

66

attempts to coordinate and synthesize activities of its
area in a realistic manner for the attainment of societal

goals.

Tools for Implementation

 

The comprehensive planner and planning agency must
function within certain governmental units and laws in F“
order to effect implementation of the comprehensive plan—
ning process.

Comprehensive planning is a vital function of a demo-

 

cratic government. The success of its programs is largely I
determined by how well the planner and planning agency ‘
function within governmental confines. The complexity of

this issue becomes clearer by viewing the various kinds of

governmental units that exist, especially within metrOe

politan areas.

Most metropolitan areas contain numerous municipal—
ities (variously called cities, villages, in-
corporated towns, and boroughs), one or more coun-
ties, a number of school districts, and a variety
of non-school special districts. In addition, some
of them, . . . have towns or townships. All these
categories of local governments differ tremendously
in many respects - in territorial size, powers,
financial authority and resources, structure, and
ability to adjust capably to metropolitan condi-
tions, . . . Some of these variances often are
evident even within the same category or class of
local governments; for instance, in various states
municipalities differ in structure and substantive
powers, special districts differ markedly in fea-
tures from each other, and county governments are
of different types. The variations can be still
more pronounced when a metropolis straddles parts
of two states, a condition that has become in-
creasingly more common. Each state determines the

67

characteristics of every category of its local
units without deliberate regard for comparable
actions in adjoining states.

It is important to gain an understanding of the
governmental system of the metropolis and its
various parts or subsystems. Governments, as we
know, represent a verg significant dimension of
the metrOpolis . . .

Somewhere, within the confines of these political
structures, are planning offices developing plans and
policies to either function within or change the legal
framework to carry out the goals and objectives of the
planning process.

All planning action must satisfy federal and state
constitutional requirements of "due process." Planning

then must function within the legislative actions granting

it necessary authority to carry on the planning process.

The Legal Basis
for Planning

Due to the American System of states rights, plan-
ning has only those functions and powers delegated to it
by each individual state. The state specifies the struc-
ture of the planning agency, its powers and the procedures
for exercising these powers.

Each state will differ. In the main, there is
usually a State Planning Agency to coordinate economic

development, transportation, budgeting procedures, etc.

 

8John C. Bollens and Henry J. Schmandt, The MetrOp-
olis - Its People, Politics, and Economic Life (New York:

Harper & Row, 1965), pp, lAl-1A2.

 

-'
n

68

The general trend now is to have this Agency within the
Executive Office of the State, so that activities are
better coordinated through intergovernmental procedures.
Presently most of these agencies are advisory bodies. How-
ever, legislative action on the recommendations cited in
Chapter 11 could give these agencies the necessary power
to better accomplish the coordination of activities through
intergovernmental procedures. I
A variety of enabling acts provide for the enacting

of ordinances which allow planning to function below the

 

state level. A review of the planning commission acts of
the State of Michigan will serve to clarify these ordi-
nances and describe the kinds of activities in which Michi—
gan Planning Commissions are now involved in relation to
master plan (comprehensive plan) development. Michigan at
present has four legal acts for establishing planning com—
missions.
1. The Municipal Planning Commission Act, Act
285, P.A. 1931.
2. The Regional Planning Commission Act, Act 281,
P.A. 19A5.
3. The County Planning Commission Act, Act 282,
P.A. 19A5.
A. The Township Planning Commission Act, Act 168,

P.A. 1959.

 

69

Two of these Acts, the Regional Planning Commission
Act and the County Planning Commission Act are strictly
advisory in nature. They function simply to coordinate
and synthesize the various planning activities within
their various areas and make appropriate recommendations.
Their recommendations are recognized only when they are
adOpted by the various municipalities within the areas
being served by these acts. They have no power in and of
themselves.

A summary review of these acts will serve to em-

 

I'. I_.._

phasize these points.

Regional Planning Commission Act9
Act 281, P.A. 19A5

An act to provide for regional planning; the crea—
tion, organization, powers and duties of regional
planning commissions; the provision of funds for
the use of regional planning commissions; and the
supervision of the activities of regional planning
commissions under provisions of this act.

This act allows two or more local governmental units
to create a regional planning commission_whose boundaries
will be determined by those legislative bodies. This com-
mission may conduct all types of research studies, prepare

maps, charts and make appropriate plans for the physical,

social and economic development of the region. It may

 

9Regional Planning Commission Act, As Amended, State
CHPIWichigan, Act 281, Public Acts of 19A5, p. 19. Laws
Relatir@;to Planning, Michigan Chapter of the American
Institute Of’Planners, State of Michigan, Lansing, 1959.

70

also serve as an advising and coordinating agency to the
participating local governmental units.

County Planning Commission Act10

Act 282, P.A. 19A5
An act to provide for county planning; the crea-
tion, organization, powers and duties of county
planning commissions.
This act authorizes any county to make, adopt, amend, r“
extend and carry out a county plan. The commission shall 1

make studies and surveys and formulate plans and make

recommendations for the economic, social, and physical

 

development of the county. It shall cooperate and consult
with other departments of state and federal governments
and public agencies concerned with development within its
jurisdiction and adjacent areas.

‘The County Commission may be designated a Metro-
politan Planning Commission to perform comprehensive plan-
ning activities of a metropolitan or regional nature. Any
plan recommended for an incorporated area shall be Offi-
cial only when adopted by the municipalities under appro—

priate statutes.

The two remaining acts, the Municipal Planning Com—
mission Act and the Township Planning Commission Act do

have powers. Both of these acts grant the authority to

 

10County Planning Commission Act, As Amended, State
of Michigan, Act 282, Public Acts of 19A5, p. 1; Technical
Bulletin A-Al, July, 1968; Institute for Community De-
velOpment and Services, Continuing Education Service,
Michigan State University.

71

their respective Commissions to make and adopt a master or
basic plan for the physical development of a community and
the unincorporated portions of the township. The Com-
missions are granted the necessary authority to make con-
tinuing surveys, to consult with representatives of the
various subdivisions and to attempt to coordinate their
activities.

After the adoption of the master plan, no public
buildings (schools, etc.), or public structures, roads,
parks or other public facilities can be constructed or
authorized without the approval of the planning commis-
sion. Thus these acts give their Planning Commissions the
authority to enforce their recommendations for physical

development.

Municipal Planning Commission Act11

Act 285, P.A. 1931

An act to provide for city, village and municipal

planning; the creation, organization, powers and

duties of planning commissions; the regulation

and subdivision of land; and to provide penalties

for violation of the provision of this act.

This act authorizes municipalities (cities, villages,

other incorporated political subdivisions, townships and
chartered townships) to make, adopt, amend, extend, add

to, or carry out a municipal plan. The commission shall

 

11Municipal Planning Commission Act, As Amended,
State of Michigan, Act 285, Public Acts of 1931, p. 1;
Technical Bulletin A-60, July, 1968; Institute for Com-
munity Development and Services, Continuing Education
Service, Michigan State University.

.2.‘ .A‘EII.

 

] I141: Hm

72

make comprehensive surveys and make a master plan for the
physical development of the municipality. When the master
plan is adopted no street, square, park, or other public
way, ground, or open space, or public building or struc—
ture shall be constructed or authorized in the municipality
unless it has been submitted to and approved by the com—
mission. This commission will also consult and advise
other public officials and agencies (education, public
utilities, civic, professional and other citizen organi-
zations).

Township Planning Commission Act12

Act 168, P.A. 1959
An act to provide for township planning; for the
creation, organization, powers and duties of town-
ship planning commissions; and for the regulation
and subdivision of land.

This act gives the township board the authority to
create a planning commission to make, adopt, extend, add
to or otherwise amend, and carry out plans for the unin-
corporated portions of the township. After the adoption
of the basic plan no street, square, park or other public
way, ground or Open space, or public building or structure,

shall be constructed or authorized in the township without

the approval of the planning commission.

 

12Township Planning Commission Act, As Amended,
State Of Michigan Act 168, Public Act of 1959, p. 1;
Technical Bulletin A-71, July, 1968; Institute for Com—
munity Development and Services, Continuing Education
Service, Michigan State University.

 

73

These two acts then do have the authority and power
to guide the physical development of municipalities and
the unincorporated portions Of townships.

The Regional and County Enabling Acts have the
authority only to make recommendations concerning the
social, economic, and physical development of their vari-
ous jurisdictions.

These are the main tools that comprehensive planners
work with today. They grant very little authority to the
planning profession. Action on the recommendations cited
in Chapter II for COOperative intergovernmental activi-
ties of a regional nature could grant the necessary author-
ity to better carry out the planning process.

But change is slow. Barr,l3 in 1950 wrote:

Today the social and physical development problems
of a community are becoming more complex, and the
functions of each political subdivision are becom—
ing more firmly enmeshed with those of its neigh-
bors. . . . To achieve the proper planning co-
ordination between the many political subdivi-
sions, it is necessary for the state legislature
to reconsider the many enabling acts dealing with
planning, zoning, . . . The planning laws for all
political units should be combined in a general

law. In that way, it will be possible to estab-
lish a clearly defined planning policy.

 

13Charles W. Barr, Planning the Countryside - The
Legal Basis for County and Township Planning in Michi-
gan (East Lansing: Michigan State College Press, 1950),

pp. 83-8A.

[u

' ,W‘hua

 

7A

Zoning

The major tool used by planners in implementing the
land—use plan of an area is zoning. Zoning is the legal
and administrative devise by which many physical plans are
implemented. The regulatory powers which zoning controls
are pOpulation density, the height, bulk and percentage of
lot coverage of buildings and other structures, and the use
of the buildings and land for trade, industry, residence
and other purposes.

It is strictly a function and tool of physical de-
velopment but is most important in the general scheme of
the Comprehensive plan. The comprehensive plan must work
within existing zoning laws while indicating necessary
changes in them. One of the main problems that exist
today, especially in metropolitan areas, is that full-
scale zoning ordinances were adopted before full—scale
planning was initiated. The overriding thought, however,
should remain that zoning is an integral part of the com-
prehensive plan. It should not, however, be the means by

which the plan is develOped.

Land Subdivision
Subdivision regulations are locally adopted laws

which govern the division of land for immediate or future
use and/or building development. The regulations are ex-

tremely important to planning in that they provide the

75

planning commission a chance to check and coordinate the
various activities of developers as to the design and
layout of private lands. Subdivision regulations are a
means of insuring that new developments are provided the
necessities for day-tO-day living by regulating the shape
and growth of an area and securing public utilities in a
safe and economical manner.

A good planning program will use zoning and sub-
division regulations within the context of the compre—
hensive plan to guide the developmental phases of land

uses while preserving areas for future needs.

Taxation

Planning like all governmental activities requires
revenues to succeed. The state legislature gives the
authority to the state, county, townships, cities and
villages to levy and collect taxes. The amount of these
revenues allocated to the planning process will in part
determine the success of the process, and the success of
the process could in fact determine the amount of money
allotted it. The end result of the comprehensive plan in
relation to taxation should always remain to better
Coordinate activities so monies collected from the people
will in fact give them the most return for their dollars.

This overview of the basic studies, data collections

and special approaches utilized by comprehensive planners

76

in developing objectives and goals of comprehensive plans,
and the "tools" necessary for the implementation of these
plans are basic to an understanding of the conceptual
framework of comprehensive planning which will be estab-

lished in Chapter IV.

 

rt.

hk

 

CHAPTER IV

THE ESTABLISHMENT OF A

CONCEPTUAL FRAMEWORK

Introduction

 

As man's world has been changing since time began,
so has planning. As man's adaptability is great so is
that of the planning process. The increasing knowledge
assimilated today suggests that man through planning has
the potential to actually shape his future. The assimila—
tion of knowledge and adaptability to change has brought
planning from an end-oriented approach to a process ap-
proach whose central focus is to satisfy the needs, de—T
sires and goals of the society it serves, within an ex-
tremely complex Operating matrix. Since the problem of
understanding the comprehensive planning process is im-
mense, this chapter will conceptualize the information
previously discussed in this study. A basic framework
of the comprehensive planning process will be estab—
lished to aid non—planners in understanding the process.

Thus far this study has identified some of the "key
factors" of the planning process. The term factors is
used here to denote the principles and practices as well
as the basic studies, data collections, and special

77

78

approaches utilized by the planning profession in con-
structing a comprehensive plan for a given area.

The first part of this definition refers to princi-
ples and practices. These are the "givens," or existing
parameters, which represent the present approaches, cur-
rent trends and future directions of the planning process.
They have been discussed in Chapter II. The second part
of this definition is influenced by the first. It has
been discussed in Chapter III under basic studies, data
collections, and special approaches utilized by planners
in the planning process to construct the goals and Objec-
tives of comprehensive plans. These factors represent
the "basics" needed by educators to deepen their insights
and understandings into the comprehensive planning pro-
cess. This understanding should serve to better define
the present and future educational needs of a region. It
is hOped that through the increased understanding and
awareness of planning that education should acquire from
this framework, a bridging effect might evolve between
the two professions. This bridging should help both the
process of planning and the process of education to coor-
dinate their efforts so future trends and developments may
truly be more comprehensive in nature.

Before constructing and elaborating on a framework
(if comprehensive planning, an overview of its basic

principles will serve to lay a good foundation. The basic

79

principle Of all planning activities is to maintain a
balance between natural and economic resources, and the
most important resource of all, people. Within this pro-
cess new challenges constantly evolve. The major chal-
lenge today is attempting to meet the needs and desires
of ever increasing metropolitan populations by allocating
scarce governmental resources among a multitude of de-
mands. Providing for these needs and resolving the con-
flicts inherent in doing so, can best be achieved through
some agency that has as its central focus the coordination
and efficient management of social subsystems in order to
bring maximum returns to the people. Planning, through
its process Of comprehensiveness, provides the framework
and opportunity to resolve these kinds of conflicts.
Comprehensiveness today means an ever increasing
awareness of the interrelated social, economic and physi-
cal variables within a political framework extending over
a given space and time. Within this process a plan is
created, comprehensive in nature, which guides and eval—
uates the prOposals of specialist planners to coordinate
their efforts so that their proposals reinforce each other
to better serve the client public. The comprehensive plan
is flexible, general and long—range. Its present day ac—
tions have long—range effects and implications. Its major
objective is to coordinate and guide all the major re—

sources and sub—systems of an area through public interest

80

and eventually bring maximum benefit to that region and
return to the people.

The framework to be established will show that the
comprehensive plan is the most significant part of the
on-going planning process. It is, at the same time, the
product and determining force of the different kinds of
studies, activities and approaches utilized throughout
the process.

The major purpose Of this conceptualization is to
establish a framework of the planning process to increase
educators' understanding of comprehensive planning. This
deeper understanding should also increase the utilization
of the planning process so that the educational leaders of
an area may better understand the present state of an area
as well as its future developmental potential. Through a
deeper understanding of the area to be served, educators
will be better prepared to meet new and changing situations
and to influence change as members Of the total planning
process. In this way, through an understanding Of new
educational situations created as change takes place, edu-
cational needs and desires of the area may better be served

through the context of the larger plan.

A Basic Schematic: Planning/EducatiOn
Education, like all the sub-systems of the larger

whole today, is process oriented. The schematic below

81

will serve to introduce the planning process by showing

the close relationship that exists between it and the edu—

cational process.

The top half of each segment represents the factors
of comprehensive planning while the lower half represents

the educational factors.

A Basic Schematic

 

I
/ Principles and Practices k
\

 

 

 

 

 

 

 

 

—_ .__.- J5" ‘

 

 

/ -—
,/ Principles and Practices \
/ \
Jée \

II V
Basic Studies Tools for Implementation
Data Collections ------------------------
Special Approaches Tools for Implementation
Basic Studies f
Special Studies IV
Data Collections Policies, Plans and Programs

 

 

Programs, Services and
Facilities

 

 

 

T
III

Goals and Objectives

Goals and Objectives

 

 

Existing within and between each segment is a means
of constant evaluation. A constant state of checks and
balances on the comprehensive planning process also
exists, especially prior to plan adoption. These take the

form of legal acts and ordinances, public hearings,

TC!‘. 3‘ u-

82

debates and meetings and a public awareness of comprehen-
sive planning activities through the news media.

The outline on the following page will delineate the
activities within each segment of the total process. This
basic schematic and outline shows the close relationship
that exists between the general process of comprehensive
.planning and the more specific process of education. The
same comparison could be made between the comprehensive
planning process and other specialized processes with the
development of much the same type of framework. Because
planning, to be truly effective, must synthesize and coor-
dinate all the specialized activities of the various sub-
systems that comprise the larger whole, many variables must

be considered within the defined region over a time period.

A Conceptual Framework

To expand this basic schematic into a conceptual
framework of comprehensive planning requires that the
variables be identified which must be incorporated. In
addition, how these variables are integrated throughout the
process must be shown. The first two variables are the
easiest to identify and the hardest to define. They com-
prise the periods of time and the areas to be served by
the comprehensive planning process.

Time is extremely important in the planning process.

It establishes a basic guide for conducting studies and

 

Comprehensive Planning

 

Principles and Practices

The givens
The basic parameters
The existing philosophy

Basic Studies,_Data Collec-
tions and Special Approaches

Population Studies

Economic Studies

Environmental/Land Use
or Physical Studies

Transportation Studies

Open Space and Recreation
Studies

Studies of Other Public
Facilities

Studies on Appearance

Studies on Social Plan-
ning

Goals and Objectives

Formulation of new Goals
Revision of existing Goals
Formulation of new
Objectives
Revision Of existing
Objectives
Policies, Plans and
Programs

Policy Making
Policy Revision
Plan Making

Plan Revision
Program Making
Program Revision

Tools for Implementation

Legal Structure

Zoning Ordinances

Subdivision

Taxation

Public Interest

Administrative
Structure

83

Education

 

Principles and Practices

The givens
The basic parameters
The existing philosophy

Basic Studies, Special Studies
and Data Collections

School Population Studies ‘5“*

School Economic Studies

School Plant and Facili—
ties Studies

School Transportation
Studies

Educational Program Studies

Educational Service Studies

Staff Development Studies

 

Goals and Objectives

Formulation of new Goals

Revision of existing Goals

Formulation of new
Objectives

Revision of existing
Objectives

Programs, Services and
Facilities

Program Implementation
Program Revision
Service Implementation
Service Revision
Facility Implementation
Facility Revision

Tools for Implementation

Legal Structure
Jurisdictional Boundaries
Taxation

Public Interest
Administrative Structure

8A

implementing various policies, plans and programs. Time

is basically a three phase element divided into short
range, intermediate and long range segments. Short range
time usually refers to the time spent in the conducting of
basic studies, collecting data, identifying and/or revis-
ing basic goals and objectives and establishing and/or re-
vising basic policies. The period involved may range from
less than one year to five years. One to three years dura-
tion is usual for short range planning activities.

The intermediate phase is most easily defined by the

 

activities involved within it. It is that time period in
which the comprehensive plan is established or revised,
and various programs are developed and/or revised. This
time period also shows a continuation of previous activi-
ties, especially policy revision. The period of time in-
volved here is usually from two to five years.

Long range time usually refers to the "life" of the
comprehensive plan. It is concerned with the general de-
velopment of the area served for a time period extending
twenty to thirty years into the future. Because the com-
prehensive plan is in fact tied directly to the process,
the activities of the first two time periods are also
continued. Twenty to thirty years is just another guide
,to simply establish some parameters of the plan. If the
process is complete, revision techniques will show the

plan to be an on-going instrument.

85

The time spectrum on the following page shows the re-
lationship between time and planning activities within the
planning process. The years denoted at the bottom of the
spectrum cite the time used as various planning activities
are conducted for the first time. The activities then be—
come ongoing evaluative processes, which allow for neces—
sary revisions.

The second general variable is the area which is to
be served by the comprehensive planning process. For pur-
poses of this study, these range from small to large and
may comprise the local community, the urban area, the
metropolitan region or the state.

The local community is comprised of units basic to
the American way of life, the neighborhoods. Within these
neighborhoods usually are found service, shOpping and rec-
reational facilities. They also contain an elementary
school, usually within walking distance of the residential
areas. Two or more neighborhoods combine to form a com-
munity with extended service, shOpping and recreational
facilities. Depending on the size of the community, one
or more middle and senior high schools may also be found.
Extended educational facilities also show some of these
areas containing a community college.

Next in size is the urban area. It is usually and
most conveniently defined by political boundaries. It is

a Complex of people, businesses, industries, multi service

86

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87

and shOpping facilities, civic and cultural centers all in—
terconnected by networks of transportation and communica—
tion. It provides basic services and facilities to its
surrounding adjacent communities.

The next area, which in the future will be receiving
increasing attention, is the metrOpolitan region comprised
of a metropolis and its supra—urban space. Its tangible
boundaries are hard to define because its influence is
great. In order to deal with this elusive area, the dif-
ferent influences within its boundaries that enable it to
be distinguished from its neighboring territory must be
considered. In the main, metropolitan regions are usually
distinguished by social, economic and political cohesive-
ness. Metropolitan regions Often jump political bounda-
ries and many times jump state boundaries to include sim-
ilar social and economic interests within their boundaries.
Political cohesiveness is the most difficult to control
under existing enabling legislation. Regional plans may,
in fact, be the only answer available to meet these in-
creasing needs of present and future society.

The last area identified to be served by a planning
process is the state. Politically, it is the largest of
planning units. The planning process carried out at this
level greatly affects the activities engaged in within
these lesser units. The most important function of the

state in the planning process is in recommending and

88

passing legislation to provide authority for other planning
units, in granting loans and support for planning activi-
ties, and in providing technical assistance to other plan-
ning units.

The importance of identifying the area to be served
by the planning process is extremely important. Different
communities most likely will already have plans develOped.
The function of the planning process then is to conduct
planning activities that will synthesize and coordinate
the studies, surveys, plans, prOposals, codes and ordi-
nances of the lesser community into the plan of the larger
whole. The local planning agencies have knowledge of and
insights into the community that are invaluable in devel-
oping Objectives and goals for the comprehensive planning
process especially at the state and regional level. The
effect the state and regional planning activities have on
smaller units is equally great.

The purpose of area identification within the plan-
ning process then is for different planning units to
synthesize cohesively and coordinate their activities so
that the needs and desires of all the peOple may be more
actually realized.

The last set of variables to be identified and in—
corporated into the comprehensive planning process are
those social, economic, physical and political elements

that comprise the planning area. The social variables

89

Areas of Comprehensive Planning

 

 

 

State

State Comprehensive
Planning Process:
Legislation, Loans,
Grants and Technical
Aid

 

 

 

I I

 

 

 

Metropolitan Regions

The Metropolitan Re-

 

gional Planning Process

 

I I

 

 

 

 

Urban Areas

’Urban Comprehensive
Planning and Develop-
mental Process

 

 

 

 

 

I

 

 

 

 

Local Communities

Local Comprehensive
Planning and Develop-
mental Process

 

 

The Planning Process

The
The
The
The

Synthesizing and Coordinating
the Activities of:

State

Metropolitan Region
Urban Areas

Local Communities

 

90

that must be identified within any given area are great.
They range from individual human needs, values, desires
and perceptions to the interrelationships each of these
has to social institutions as a whole. To as great an ex-
tent as is possible, these social needs, values, desires
and perceptions must be identified, considered and incor-
porated into the objectives and goals of the comprehen-
sive plan. Because social variables are concerned with
people, the characteristics of the area's population in
relation to social structure is most important. Distri-
bution of population by age, sex and socio-economic status
is important in determining the social and cultural sig—
nificance of various groups within the planning areas and
the interaction among these groups. The extent to which
these needs, values, desires and perceptions are identi-
fied and incorporated in the planning process may well
determine the long-range success of that process.

The economic variables that must be identified focus
upon the relationship the area to be served by the plan-
ning process has to other areas and the services it pro-
vides within its own boundaries. The structure of the
area's economy must be identified for sources, types and
(listribution of employment, as well as for income and ex-
penditure patterns. The area's economic potential must be
identified to see why it exists, and what possibilities

there are for change. Economic imbalances should be

91

identified and corrective measures incorporated into the
goals and objectives of the comprehensive plan. The suc-
cess of the planning process depends largely on the ac-
curacy of economic studies and future economic projections.
If the identification of the variables is accurate, pro-
jections are sound, and provisions are made to incorporate
them into the comprehensive plan, then the success of the
plan and planning process is reasonably well assured.

The physical elements that must be identified are
those natural and man-made resources and facilities that
comprise the area. The natural resources are the area's
water, soils, minerals, vegetation and climate. The man-
made facilities are buildings and other structures such as
civic, cultural, historical, recreational, transportation,
health and service facilities and farmlands. The economic,
social, cultural, aesthetic and functional affects of these
elements must be incorporated into the comprehensive plan-
ning process. The quality of life lived by the peOple in
an area depends largely on the management and develOpment
of these variables.

The political variables are all those governmental
units and public service agencies that work within the
particular area for which the plan is being develOped.
This could well be the key element to be identified within
the planning process for the success of the plan may well

depend on the COOperation received from these governmental

92

and service agencies. The extent to which provisions are
made for them to coordinate their services and activities
may well determine the financial and service return to the
people.

The successful identification of these variables and
the extent to which they are coordinated and incorporated
into the planning process will determine, in the end, the
amount of the return to the peOple in meeting and satis—

fying basic needs and desires.

Goals and Objectives

The planning process begins with the delineation of
an area and the identification of the area's significant
variables. The next Step is to conduct basic studies,
collect data and see what special approaches if any should
be taken during the beginning phases of the process.
After analyzing the basic studies, data collections and
special approaches, in relation to the area's identified
variables, the first part of plan development then takes
place as the goals and objectives of the comprehensive
plan are identified. A return to the basic schematic of
tfiue planning process will emphasize the process taking
platxe thus far (see page 9“).

Since planning today is a process, it is goal orien-
tatemi. After studying the social, economic, physical and

DOliixical matrix in which this process must operate, and

93

Variables of the Planning Process

 

 

 

 

L

 

 

Social

Individual
Needs
Values
Desires
Perceptions

Social
Needs
Values
Desires
Perceptions

Social Structure
Population
Numbers
Age Differences
Sex Composition
Socio-economic
Status

All Social Insti-
tutions within
the planning
area

 

Economic

Area's Economic
Structure
Sources
Types
Distribution
Potential
Future Devel-
opment
Employment
opportuni-
ties
Manpower
needs
Job oppor-
tunities
Skill re-
quirements
Expenditure
Patterns

 

 

 

Physical

Natural Resources

water
soils
minerals
vegetation
climate

Man-made

buildings

other struc-
tures

civic

cultural

historical

recreational

transportation

health

service

facilities

farmlands etc.

 

 

Political

Governmental
Units

Public Ser—
vice
Agencies

 

 

 

 

J

 

 

 

l Goals and Objectives of the Comprehensive Plan

 

i

[Comprehensive Plan Development]

 

(Continued Planning Process)

 

 

1

 

 

'—:

WEI—1‘

mmz>rr1~<

9D

A Basic Time Schematic of Sections I, II and III

 

 

I
Principles and Practices

These suggest the area to be served by the
planning process and the variables to be
identified and incorporated into the process.

 

 

L

II
Basic Studies, Data Collections, Special Approaches

Analysis and projection of an area's present and
future status is most important in determining
the goals and objectives of the plan to be de-
veloped within the planning process. These
studies should be regarded as devices for achiev-
ing increased understanding for defining goals

 

and objectives.

 

 

III
Goals and Objectives

From the studies conducted on the area's social,
economic, physical and political elements, the
goals and objectives of the planning process are
then devised.

 

 

 

 

95

the areas of concern, goal formulating may then begin. The
goals are those broad foundations upon which the continu-
ation of the process is based. They seek to establish the
major areas of concern and basic alternatives to these con-
cerns. They identify, examine and promote the kinds of
measurable objectives that will be incorporated into the
planning process. They thus provide the purposes and di-
rections for the process.

Goal formulation, like all planning activities,
should be enacted only through the legislative process.

In this way, the peOple of the area to be served by the
comprehensive plan are given the opportunity to make de-
cisions about the social, economic and physical develop-
ment of their particular area.

Because the goals are broad and usually general,
measurable objectives, more specific in nature, must be
specified. The success of the process depends largely on
how well the planning objectives are attained. Objectives
are usually defined by the social, economic, physical and
political variables for which they are established.

Social objectives should be the first to be defined
aIKi should receive the highest priority. Their prime pur-
pose: is to serve the needs and desires of the people.
Pkwnrision must be made so that basic human activities are
sugumarted within the planning process. A multitude of ob—

,jectxrves should provide the peOple of an area choices for

96

living and working as well as for educational, recreational
and cultural pursuits of both a general and special nature.

Economic objectives provide for the most efficient
use of an area's resources. They provide the opportunity
for future develOpment through a sound financing system.
Economic objectives must provide the public and private
sectors of an area's economy the opportunity to develop
sources, types and distribution of employment. New and
future economic development should be encouraged while
preparing this set of objectives, and provisions should be
made to encourage growth patterns, and to maintain a bal-
ance and distribution of the area's economic opportunities.

The physical objectives are primarily concerned with
the distribution and densities of population throughout the
planning area. The prime focus of this set of objectives
is to provide for the effective location of residential,
employment, educational, recreational, civic and cultural
buildings, structures and sites. These objectives also
provide for easy and efficient means of transportation to
and from any buildings, structures and sites. The objec-
tives should also provide the opportunity to correct
existing poor conditions, while maintaining good condi-
tions and providing the framework for a better planned
future through physical development.

Political objectives must be specified to provide a

means whereby planning units may urge full-scale

97

coordinated activities among the various units of govern-
ment encompassed within the planning area. Because com-
prehensive planning touches all units of government, polit-
ical objectives must be incorporated into the planning
process.

Establishing goals, defining measurable developmental
objectives and defining common areas of concern are
essential parts of the planning process. Once incorporated
into the comprehensive plan, these guide the direction a
particular area will take in shaping its future develop-
ment. Every effort must be made to include the public
within the planning process so necessary understandings
are shared and developmental goals and objectives may be

easily adOpted.

Basic Schematic Segment III:

 

Goals and Objectives

Formulate Basic Goals
Revise Existing Goals

Formulate
Social Objectives
Economic Objectives
Physical Objectives
Political Objectives
Revise
Social Objectives
Economic Objectives
Physical Objectives
Political Objectives

 

Define Common Areas of Concern

 

 

98

PoliciesJ Plans and Programs

After the initial establishment of basic goals and
objectives, the next step in the planning process is to
develop policies, plans and programs to obtain the de-
fined goals and objectives. If the process is one which
is engaged in to revise and to update activities, then
this phase of the process should be concerned with revis-
ing and updating the policies, plans and programs to meet
the criteria of the new goals and objectives.

The establishing of policies in the planning process
is an extremely valuable activity. Policies define a
course of action in obtaining goals and objectives. Poli-
cies are administrative tools which, when adopted, become
the means of carrying out particular activities. Policies
establish a framework composed of general statements
which define the direction and scope of future planning
activities. They provide the basis by which specific
recommendations and planning activities are derived from
general goals and objectives. Many times policies are
develOped into a policy plan. This process then becomes
a set of well specified activities geared to meet some
well established objectives. A policy plan is a set of
statements which guides the day-to-day decision-making
activities of public officials. If well established and
adOpted, it has beneficial effects on the planning process.

The ease in understanding policy statements and seeing the

99

completion of specific activities encourages a good work-
ing relationship between planning officials, elected offi-
cials and the general public. A policy plan may provide
the framework to coordinate and synthesize the activities
of local and multijurisdictional political and other pub-
lic service agencies. This is extremely important and
beneficial for metropolitan regional planning activities.
A policy plan or set of policy statements usually focuses
upon short—range planning activities, and therefore is
generally readily acceptable. A set of policy statements
or a policy plan may well be the initial device needed to
engage in comprehensive planning activities and/or the
means whereby a comprehensive plan is authorized, con-

structed and adopted.

Most often now, however, policy statements or policy
plans are incorporated within the comprehensive plan. The
comprehensive plan can be said to be the official document
of the planning process. It is the direct result of all
previous planning activities. It is, at the same time,
the document that will allow for the continuation of
future planning activities after its adoption.

The basic characteristics of the comprehensive plan
are that it is comprehensive, general in nature and long
range. The plan is comprehensive in that it includes all
tflna social, economic, physical and political variables

that ccmwudse the planning area. The plan is general in

100

that it coordinates and synthesizes the policies, pro—
posals and future directions of the social, economic,
physical and political sectors of the planning area, but
it does not indicate specific regulations or locations for
various activities. The plan is long range in that it
looks beyond pressing current issues and looks to coordi-
nating developmental activities for the next twenty to
thirty years.

Comprehensive plans do have some basic requirements.
The plan should be a single official document adopted by
the legislative body of the area for which it is con-
structed. This can be accomplished for local communities,
urban areas and the state. At present there is no legis-
lative framework available allowing metropolitan regions
to adOpt a comprehensive plan.

After incorporating the social, economic, physical
and political goals and objectives and suggesting strate-
gies and activities for meeting these goals and objec-
tives, the plan must provide for the continuation of pre-
vious activities. This on-going process is perhaps the
rmost important function of the plan and is extremely im-
Ixzrtant in today's growing metropolitan regions. If
chevelOpmental planning activities are ever to meet the
needs and desires of the people, they must be constant
aIKi ongoing. Thus the plan must provide for legislative,

adndJIistrative, financial and citizen involvement in

101

proposals to establish activities so that the planning
process remains constant and ongoing.

Because of its complexities, the construction of a
comprehensive plan should be left to the planning profes-
sionals. The scope of the activities they engage in,
however, should not slight any of the areas previously
discussed in this study. Should this happen, comprehensive
planning and the development of a comprehensive plan are
ineffectual and ineffective, for the planning activity then
becomes either physical, economic, social or political
planning and not comprehensive. Many of the plans that
are called comprehensive today are in fact not comprehensive
but are stop-gap measures taken to meet some pressing need
and are lumped under the heading of comprehensiveness.

The reader should be constantly aware of such plans and
activities.

The programs of the planning process should carry
out the prOposals and recommendations made in the compre-
hensive plan. Programs comprise a range of activities
vniich attempt to coordinate the various activities of the
scmxial, economic, physical and political sectors of the
arwxa being served. Comprehensive planning programs pro-

vithe financing and capital improvement opportunities for

trumse sectors. They provide a means for implementing on

a.snnaller scale and within shorter time segments the

geruaral goals and objectives of the comprehensive plan.

102

Because programs are developed within the planning
process and are incorporated into the comprehensive plan,
their activities can be said to be total. They are not
ad hoc in nature, but rather they are concerned with the
total development of an area's social, economic, physical
and political sectors over a long period of time. Thus
separate programs for the physical development, economic
develOpment, social develOpment and political development
of an area are possible, but if such programs come out of
the comprehensive plan, they will have as their central

focus the comprehensive long—range development of the area.

Basic Schematic Section IV:

 

 

 

 

43...,” The Plan “~=;

Policies Programs
A course of action The prime focus ande Comprise a range
to obtain goals major document of of activities to
and objectives. the planning pro- carry out the
Usually short range cess. It is com- proposals and
or day-to-day ad- prehensive, general recommendations
ministrative deci- and long range made in the com-
sions. meeting the goals prehensive plan.

 

 

 

 

 

the social, eco- |

nomic, physical and

political sectors I
I

I *K" and objectives of
| I

| I

| I of the planning

 

 

 

r.
I
I§
I2»
I

I

I

I

I
L.

I———-s

Tools for Implementation
Presently, the tools for implementing the compre-

hensive plan and for continuing the planning process are

103

inadequate. They are specified under those legal struc-
tures that provide planning the authority to exist within
various governmental structures and those ordinances that
provide it auxiliary support. The legal framework of
planning consists of those federal and state legislative
enabling acts that establish planning commissions and
specify their functions, duties and powers as well as the
administrative structure of such commissions. These will
vary at the State level from state to state. At the Fed-
eral level, there are now a number of laws governing urban
renewal programs and others adding supportive services for
planning activities, especially "701 funds" which come
under the Housing Act of 195“.1

Auxiliary services are provided under various zon-
ing and subdivision regulations of the various states.
These are, however, primarily concerned with the physical
develOpment phase of the planning process and are presently
the "tools" most used by planners. Taxation is the means
which provides the planning process the necessary revenues
to continue.

All enabling legislation dealing directly with the
Ialanning process and those which add supportive services

remaixxinadequate. Current trends and directions and the

—

1These funds are federal monies offered to the states
fin? planning activities. They are authorized under the
Ikmxsing Act of 195u (Public Act 560, Title VII, Section
701).

IOU

"increased awareness" of the need for planning activities,
comprehensive in nature, may in the near future grant to
planning the added legislative action needed to become more
deeply engaged in coordinating and synthesizing activities
to bring together in a harmonious manner the various direc-
tions in which the social, economic, physical and politi-
cal sectors of society are heading.

This can come about only through public involvement
and support which is the most powerful tool any profession
has. Presently public support is demanding more return
for monies spent. Demands of this type could well be met
through the cooperation of the many parts of the total

unit within the planning process.

 

Basic Schematic Section V:

 

Tools for Implementation

 

Political Structure
Legislative Enabling Acts
Specifying Planning:
Functions
Duties
Powers
Administrative Structure

Auxiliary Support
Zoning
Subdivision

Tax Structure

Public Involvement

 

 

 

105

The following chart will serve to summarize the com—
prehensive planning process. Segments I, II, III, IV, and
V are those conditions, activities and realities that com-
prise the main and general directions of the planning pro-
cess. Segments A, B, and C are comprised of those vari-
ables that contribute to the process. The degree to which
each of these variables is included within the process
will determine the success of the comprehensive plan and

the continuation of the planning process.

t I x
I I t .V

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l---

 

 

 

  
 

 

 

 

 

 
 

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CHAPTER V

SUMMARY, CONCLUSIONS, DISCUSSION, AND

IMPLICATIONS FOR FURTHER STUDY

Magi
This eXploratory study established a conceptual

framework of the comprehensive planning process. The use
of this framework should enhance educators' understanding
and awareness of comprehensive planning so they may better
understand the educational area for which they are respon-
sible. Education, being one of society's most significant
subsystems, has both much to gain from and much to con—
tribute to this process. However, before gains or contri-
butions are realized, a basic understanding must occur.
Thus the major objective of this study was to conceptualize
the comprehensive planning_process for better understanding
through the establishment of a framework.

Today, the planning profession is that agency which
zittempts to coordinate and synthesize all the subsystems
of the larger whole. The framework established in this
study is looking to the future, for planning has not yet
:reached the level of sophistication needed to coordinate
euui synthesize all the social, economic, and physical
‘varieuales within the existing legal-political framework.

108

109

The r>search cited suggests, however, that planning is
moving towards a "new comprehensiveness" that involves and
demands new and deeper understandings of the social, eco-
nomic, physical and political sectors of an area in order
to maintain a balance among these sectors. Growing metro-
politan regions are receiving increased attention in this
area. The legal framework needed to coordinate and syn—
thesize all the social, economic, physical and political
variables is presently non-existent. However Chapters II
and III cite current recommendations that may enable this
new comprehensiveness to succeed on a regional basis in
the near future.

The comprehensive planning process must constantly
meet new and increasing demands and challenges. The pro-
cess therefore is composed of a set of ongoing, inter—
related activities starting with a governing philosophy or
a set of basic beliefs and principles. This philosophy
presently is demanding that new and added pressures be
placed upon the various social, economic, physical and
political sectors of an area to coordinate and synthesize
their various activities for develOpment especially within
our increasing metropolitan regions. This is done by con-
ducting basic studies and collecting data that help for-
mulate new or revise existing goals and objectives. These
goals and objectives are then used to formulate and/or re-

vise policies and develop and/or revise the comprehensive

110

plan for the area being served. It is the comprehensive

plan that is the prime focus of the planning process.

The next phase of the process is to develOp a set of
programs that will help implement the comprehensive plan
through the available legal and political tools and through
public involvement and support. Throughout the process
there is a constant means of evaluation that suggests or
determines whether the present philos0phy is maintained or
changed. Thus comprehensive planning, through its process,
is a continuing activity always serving the area for which
it is intended.

The basic principle of planning then is to try to
maintain a balance between natural and economic resources
and the peOple. This is indeed a difficult task for no
man, profession or institution fully understands how this
can be accomplished. If the comprehensive planning process
is viewed as a whole, it seems to come closer to coordinat-
ing the complexities of the world than do any other activ—
ities. This is done by coordinating the work of the ex-
perts in the various sectors that comprise the larger
vnmale. These are the responsibilities of the planner and
time planning process. Some of the responsibilities of
exhlcators,_presently, are to attempt to understand this
prmnsess, to become involved, to challenge old conventions
IflheTl necessary and develOp new approaches to educational

planning of a fiscal anchhysical nature.

111

Conclusions

 

In addition to developing a conceptual framework of
comprehensive planning to enhance educators' understanding
and awareness of that process, this study also set out to
answer five questions in relation to this framework. The
first three questions dealt with the identification, na—
ture and utilization of selected factors used by the
planning profession. It was established that: the term
factors was used to denote the principles and practices as
well as the basic studies, data collections and special
approaches utilized by the planning profession in con-
structing a comprehensive plan for a given area. The
fourth and fifth questions dealt with the educational im-
plications of the framework and its utilization in devel-
Oping a better understanding between educators and plan-
ners.

Question I: What are those factors utilized by the
planning profession that have direct bearing on an area's
composition and its future development?

This question was answered in Chapters II and III by
defining and discussing planning and the planning profes-
sion as well as its current trends and directions. These
elements were defined as planning's principles and prac—
tices. Next the basic studies, data collections and Eh;
.§Qecial kinds of approaches that_planners engage in were

ixhentified. It was shown that through analysis and

112

comparison these studies are then synthesized and formu—
lated into planning goals and objectives. The goals and
objectives are then incorporated into policies; the plan is
developed and programs are implemented through existing
2921?;-

Thus five sets of planning factors were identified

in this study:

1. Principles and Practices

2. Basic Studies, Data Collections and Special

Approaches

3. Goals and Objectives

u. Policies, the Plan and Programs

5. Tools for Implementation

Three sets of significant variables were also iden-
tified:

1. The Area

2. The existing Social, Economic, Physical and Po—

litical Variables and

3. The Time Element

Question II: What do these factors tell about the
area?

The factors help identify the various social, econo-
ndxz, physical and political variables that exist and must
tn: incorporated within the planning process. The various
stmuiies and data collections conducted on an area's pOpu—

latitni, economy and physical characteristics provide

113

planners and planning agencies the necessary base to begin
to define developmental goals and objectives within the
political framework. Thus the identification of variables,
the conduction of studies and the develOpment of goals and
objectives tell about the current state of affairs as well
as future developmental possibilities for a given area.

Question III: How can these factors be utilized in
establishing a conceptual framework within which educators
may choose to work to enhance their awareness of planning?

The factors discussed in Chapters II and III have
been consolidated to establish the conceptual framework of
comprehensive planning detailed in Chapter IV. The enti-
ties studied and the activities conducted within this
framework serve as the basis for develOping an educator's
understanding of the comprehensive planning process.

Question IV: What are the educational implications
that may be derived from the use of this framework?

There are many educational implications to be de—
rived from the use of this framework, especially those con-
cerned with the physical and fiscal aspects of educational
plarufixgp Through the use of this framework, educational
leadeuwscan.become better acquainted with the general state
cd“the area for which they are educationally responsible.
TWunmxgh this understanding, existing situations, imminent
prwflilems, speculative opportunities and future trends will

berxxne evident. The planning process, through the

11H

develOpment of a comprehensive plan, will provide educators
detailed information on the social, economic, physical and
political variables existing within their service area.

Through the use of studies, data collections and
other activities conducted and compiled by a planning
agency, educators can receive detailed information on any
number of variables. Population studies will differentiate
age, sex and race composition, its distribution and ex-
pected growth. This is an invaluable service in guiding
educational leaders' decisions about future educational
develOpmental activities. To support population projec—
tions, economic studies define an area's economic struc—
ture, the sources, types and distribution. The projected
growth of an area depends on its future economic poten-
tial, employment opportunities and manpower needs. Studies
conducted on social planning will provide the educator in-
formation on individual and group needs, values, desires
and the perceptions of the peOples within his area as well
as their social and economic status. These three types of
studies may provide quantitative, as well as the possi-
Iaility for qualitative, estimates on the kinds of schools,
faxxilities, programs, services and staff which educators
SIKNlld be planning for to better meet and serve the true
neexis and desires of the people within a given area.

The physical and environmental studies provide edu-

cattnss information on the area's natural resources, its

115

water, soils, minerals, vegetation and climate. These
studies also give detailed information on man-made re-
sources by conducting studies on the area's civic, cul-
tural, historical and recreational buildings and other
structures, and the different types of residential areas.
Transportation and studies of other networks of communi—
cation also add needed information to the educator's
overall understanding of his service area.

As educators use this framework to develOp a more
complete understanding of their service area, they can be-
come more involved in the planning process and help to in—
corporate the goals and objectives of the education system
into the comprehensive plan. The more total the planning
process, the more sub-systems involved, the greater the
returns to the peOple.

Question V: How can this framework help to bring
zabout better understanding and COOperation between educa-
‘tors and planners as they move toward achieving the Opti-
nle goals for an area in a practical, realistic manner?

The answer to this question lies in the cogperative
efflflorts that can takegplace between planning and education
thunsugh a deepgr understanding by each of the other's work,
THie lcinds of activities that will emerge will coordinate
true efforts of both planners and educators as they attempt

‘to eushieve the Optimal goals for an area in a practical,

reali stic manner .

116

This study indicated throughout that education has
much to gain from the_process of planning. It also em-
phasized that the process of planning could never be com—
plete unless the needs, desires, goals and objectives of
education were included within it. This can best be ac-
complished through the efforts of educators working with
planners towards the common end of providing needed input
into the total_process of a very important part so that its

needs are met within the process.

Discussion

The framework developed in this study should provide
the educational leaders of an area, whether employed by
that area or serving on a consultant basis, the necessary
information to help them become more accountable for those
educational planning activities fiscal and physical in na-
ture. While passing millage elections and expanding build-
ing programs are both necessary, the undue amount of time
presently spent on these activities hinders the effective-
ness of educational leadership. Involvement in the com-
;nmehensive planning process will serve to increase the
effectiveness of fiscal and physical educational planning
anytivities while giving the educational leader added time
ftn? educational pursuits.

The increased knowledge and understanding acquired

by iJTvolving the educational system within the

117

comprehensive planning process will make it more account-
able for monies spent, especially on building programs.
This will be accomplished through the use of the basic
studies and data collections utilized by the comprehensive
planning process allowing a deeper understanding of the
projected growth potential and needs of the area being
served by an educational system.

It is also not unrealistic to predict that in the
near future most of the educational fiscal responsibilities
will be absorbed into a Program Planning Budgeting System
approach which will also be an integral part of the plan-
ning process. What then does all this say to the educa-
tional planner? It urges him to face realistically that
society is presently in a stage of development that is
moving from ad hoc planning activities to those of a more

comprehensive nature. These activities are demanding that

 

the process of education should be a continuous systematic,
action—oriented set of Operations, which utilize and coor-
dinate those social, economic, physical and political
forces of society that move the educational system toward
the achievement of its goals and objectives, while con-
stantly evaluating itself and making necessary changes.
For this to be accomplished education, as well as the
other sub—systems of the larger whole, must join the total

comprehensive planning process.

118

Educational planning of a comprehensive long-range
nature is presently at the first phase of development
within the context of the larger process. In relation to
the framework develOped in this study, educational plan-
ning is presently trying to identify and define its prin-
ciples and practices. School districts are beginning to
engage in voluntary dialogue to exchange ideas, gain in-
formation and identify areas where c00peration may exist
between districts. They are beginning to identify the
social, economic, physical and political sectors where
activities may be coordinated and synthesized. School
districts are beginning to see that educational planning
programs should not be building programs focusing solely
upon satisfying population concentrations, but rather
should totally interrelate the whole of an area's re-
sources.

Educational authorities, school administrators and
school boards are now beginning to think in terms of long-
range region—wide educational planning endeavors, espe-
cially within metropolitan areas. The numbers of these
people are small but they are increasing as new and con-
stant demands are being placed upon them. This, linked
with many already successful cooperative educational ac-
tivities, such as special education programs, regional vo-
cational schools, community colleges, computers, educa—

tional television, library and other media and auxilliary

119

facilities, and cooperative action in teacher recruitment
and in-service education, is changing peoples' thinking
towards looking at the advantages of comprehensiveness and
reducing fears about giving up autonomous activities.

The current recommendations for educational reform
in the State of Michigan suggest that educational planning
practices and activities may well be changed in the near
future, especially those concerned with administrative,
organizational and financial areas. The basis for these
recommendations is the"Thomas Report,"(School Finance and
Educational Opportunity in Michigan). Although the re-
port is concerned with education, the entire report actu-
ally deals with the process of planning. This report and
the"Governor's Educational Reform Package"eite Michigan as
a leader in educational reform. They suggest that edu—
cational planning may eventually become part of the total
comprehensive planning process. Thus emphasis is given to
the strong need for a better understanding of this process.

Assimilation of educational planning into the total
process will not happen in the near future, but the foun—
dation is being laid. More and more educational activities
are being assumed by offices of planning coordination and
bureaus of budgets. The methods and policies to implement
the recommendations cited in both the"Thomas Report"and
the"Governor's Educational Reform Package"are presently

being discussed.

120

Recently the Office of Planning Coordination of the
State of Michigan published A Chronology of Educational Re-
form in Michigan (see Appendix A). It is extremely sig-
nificant that an office of planning coordination would pub-
lish a document dealing with education and also significant

that this would be financed by 701 funds.l

Currently, the State Department of Education's Re—
organization Section is engaged in conducting workshops to
establish communication between the state department and
local school districts on reorganization to provide feed-
back on legislative and state department actions on school
reorganization, to provide clarification on various bills
and to obtain various data related to school district re-
organization. This interaction suggests that a bridging
between planning and education is already underway.

These activities may be a tremendous asset to edu—
cation for they finally allow the educational leaders of
an area to become more involved in the educational leader-
ship roles so necessary today, for example, staff develop-
ment, curriculum improvement, research and evaluation and
1w1blic:relations. It is hoped that the understanding ob—
tairuai from this framework will enable education to make
valiuible contributions to total planning efforts, so that

le‘the end, the resulting comprehensive plan will truly

 

1These funds are federal monies offered to the states
;for leanning activities. They are authorized under the Hous-
irug.Act of 195a (Public Act 560, Title VII, Section 701).

121

include the means for implementing educational needs and
desires in a practical, realistic manner. It is hOped this
will keep economic responsibility and accountability from
becoming the main objective of the educational system, and
help preserve humaneness and individual freedom through
comprehensive planning toward humanistic goals. This may
best be accomplished by incorporating the "true" needs and
desires of the various sub-systems into the larger process.

For: The best defense against planning——and peo-
ple do need a defense against planners-~13
to become informed about the plan that is
indeed existent and Operating in our lives;
and to learn to take the initiative in pro-
posing or supporting reasoned changes.

Such action is not only a defense but good
in itself, for to make positive decisions
for one's community, rather than being
regimented by other's decisions, is one Of
the noble acts of man.2

Implications for Further Study

 

The following are suggested for further study.

1. A companion study is needed to develop a frame-
work of the educational process to deepen the
understanding and awareness of educational needs,
desires and problems, on the part of comprehen-
sive planners, government Officials and others

engaged in activities that affect education.

 

2Percival Goodman and Paul Goodman, Communitias:
Meaffi3<3f Livelihood and Ways of Life (New York: Vintage
Books, 1960),1HL lO-ll.

 

122

A study of the comprehensive planning process,

through the use of the framework established in

this study, is needed to determime further edu-

cational implications.

Studies are needed to:

a.

identify an area where good comprehensive
planning exists and, through the use Of the
framework done in this study, examine the
practicality of its use to educators in un-
derstanding their service area and its use-
fulness in helping them become involved
within the planning process for better edu-
cational planning.

review the kinds of cooperative planning
activities presently being conducted in
metropolitan regions for educational impli—
cations.

identify an area with a well develOped com-
prehensive plan to determine to what extent
the goals and objectives of the educational
system within that area have been included
within the comprehensive plan.

strengthen ties between educational planning

and comprehensive planning. This may best be

accomplished by establishing a framework of

123

the process of education to enhance plan-
ners' awareness of educational problems and
needs.

e. determine the effectiveness Of using the
planning process to ease physical and fiscal
responsibilities of educational leaders.

Survey studies are needed to:

a. identify which school districts are pres-
ently involved in or are using planning
agencies and what educational implications
are derived from these studies.

b. determine the extent of this involvement.

c. determine the extent to which the planning
agencies helped in educational planning.

d. determine the attitudes of educational
leaders concerning the kinds of cooperative
planning activities suggested in this study.

e. determine what further information is needed
to make educators more aware of the benefits
derived from involvement in the planning pro-
cess.

Studies are needed concerning the reorganization

of school districts in Michigan especially with

reference to the recommendations made in the
"Thomas Report"and the"Governor's Educational Re-

form Package."

 

BIBLIOGRAPHY

12A

BIBLIOGRAPHY

Books

Adams, Don, ed. Educational Planning. Syracuse, N.Y.:
Syracuse University Press, 196H.

 

Altshuler, Alan. The City Planning Process: A Political
Analysis. Ithaca, N.Y.: Cornell University Press,
19 50

 

Anderson, C. A., and Bowman, Mary Jean. "Theoretical
Considerations in Educational Planning." Educa-
tional Planning. Edited by Don Adams. Syracuse,
N.Y.: Syracuse University Press, 1964.

 

 

Barr, Charles W. Planning the Countryside - The Legal
Basis for County and Township Planning in Michi-
gan. East Lansing: Michigan State College Press,
1950.

 

Beneday, George Z. Educational Planning. The World Year-
book of Education. New York: Harcourt, Brace &
World, 1967.

 

Bollens, John C., and Schmandt, Henry J. The Metropolis:
Its People, Politics,,and Economic Life. New York:
Harper and Row, 1965.

 

Chapin, F. Stuart. "Foundations of Urban Planning."
Urban Life and Form. Edited by Werner Z. Hirsch.
New York: Holt, Rinehart, and Winston, 1963.

 

. Urban Land Use Planning. 2d ed. Urbana: Uni-
versity of Illinois Press, 1965.

 

Friedmann, John, and Alonso, William, eds. Regional
Development and Planning. Cambridge: The MIT
Press, 196“.

 

Goodman, Percival, and Goodman, Paul. Communitas:
Means of Livelihood and Ways of Life. New York:
Vintage Books, 1960.

 

 

125

126

Goodman, William I., and Freund, Eric C., eds. Principles
and Practice of Urban Planning. Washington, D.C.:
International City Managers' Association, 1968.

Goodman, William I., and Kaufman, Jerome L. City Plan-
ning in the Sixties - A Restatement of Principles
and Techniques. Urbana: University of Illinois,

1965.

Gottmann, Jean. Megalopolis. New York: The Twentieth
Century Fund, 1961.

 

 

Havinghurst, Robert J., ed. Metropolitanism: It's Chal—
lenge to Education. The Sixty-seventh Yearbook of
the National Society for the Study of Education.
Chicago: The University of Chicago Press, 1968.

 

Herman, Robert S. "State Planning and Development in a
Federal System." Regional Accounts for Policy
Decisions, Committee on Regional Accounts.

Edited by Werner Z. Hirsch. Baltimore: Johns

Hopkins Press, 1966.

 

Hirsch, Werner 2., ed. Regional Accounts for Policy
Decisions, Committee on Regional Accounts.
Baltimore: Johns Hopkins Press, 1966.

 

. Urban Life and Form. New York: Holt, Rinehart,
and Winston, 1963.

Isard, Walter, ed. Methods of Regional Analysis: An
Introduction to Regional Science. New York:
MIT Press and John Wiley & Sons, 1960.

Laws Relating to Planning. Compiled under the super-
vision of the Secretary of State by the Michigan
Chapter of the American Institute of Planners.
Lansing: State of Michigan, 1959.

Ixavine, Daniel, and Havinghurst, Robert J. "Social
Systems of a Metropolitan Area." Metropolitanism:
It's Challenge to Education. The Sixty-seventh
Yearbook of the National Society for the Study of
Education. Edited by Robert J. Havinghurst.
Chicago: The University of Chicago Press, 1968.

Perflxmff, Harvey S. Education for PlanninggCity, State,
and Regional. Baltimore: Johns Hopkins Press,

1957.

 

127

 

fieports
American Institute of Planners. Proceedings. Annual Con—
ference. Washington, D.C.: 1963.

Budget Message of the Governor for the fiscal year 1970—
1971, William G. Milliken, Governor of Michigan.

 

County Planning Commission Act, As Amended. State of
Michigan, Act 282, Public Acts of 19A5. Technical
Bulletin A-Ul, July, 1968. Institute for Com-
munity DevelOpment and Services, Continuing Educa-
tion Service, Michigan State University.

Emerging Regional Cities. Government Relations and
Planning — Policy Conference. Washington, D.C.:
American Institute of Planners, 1965.

 

Fiscal Program for a Balanced Federalism. A Statement
on National Policy by the Research and Policy
Committee. New York: Committee for Economic
Development, 1967.

Municipal Planning Commission Act, As Amended, State of
Michigan, Act 285, Public Acts of 1931. Technical
Bulletin A—60, July, 1968. Institute for Com-
munity DevelOpment and Services, Continuing Educa-
tion Service, Michigan State University.

Planning and Development Regions for Michigan. Office of
Planning Coordination, Bureau of Planning and Pro-
gram Development, Executive Office of the Governor.
Technical Report No. 1“, February, 1968.

Report of the Governor's Commission on Educational Re-
form, September 30, 1969, William G. Milliken,
Governor of Michigan.

Reshaping Government in Metropolitan Areas. New York:
Committee for Economic Development, 1970.

§tate Responsibility in Urban Regional Development.
Chicago: The Council of State Governments, 1962.

Thomas, J. Alan. Michigan School Finance Study. School
Finance and Educational Opportunity in Michigan.
Lansing: Michigan Department of Education, 1968.

128

Township Planning Commission Act, As Amended, State of
Michigan, Act 168, Public Act of 1959. Technical
Bulletin A-71, July, 1968. Institute for Com-
munity Development and Services, Continuing Educa—
tion Services, Michigan State University.

Urban Growth and Problems. Report to Governor George
Romney by the Special Commission on Urban Problems,
State of Michigan, 1968.

 

Articles and Periodicals

American Institute of Planners. "Report by AIP Committee
on Restatement of Institute Purposes," March 15,
1966. AIP Newsletter, April, 1966.

 

Bolan, Richard S. "Emerging Views of Planning." Journal
of the American Institute of Planners, Vol. 33,
No. A (July, 19677, 233-2A6.

Campbell, Alan K. "A New Constitution for New York."
Journal of the Academy of Political Science,
Vol. 28, No. 3 (January, 19677, 9.

 

 

 

Chambers, George A. "PPBS - New Challenges and Opportuni-
ties for the Principal in Financial Planning and
Management." North Central Association Quarterly,
Vol. XLII, No.63 (Spring, 19683, 306.

DeLone, Richard H. "Cool Man in a Hot Seat." Saturday
Review, September 20, 1969, p. 69.

Doxiadis, C. A. "Preparing Ourselves for the City of
Tomorrow." EKISTICS, Vol. 27, No. 161 (April,
1969), 27A.

Dror, Yehezkel. "The Planning Process: A Facet Design
(1)." International Review Administration Ser-
vices, Vol. 29, No. 1 (1963), A6-58.

Dyckman, John. "State Development Planning: The Cali-
fornia Case." Journal of the American Institute
of Planners, Vol. 30, No. 2 (May, 196A7, lhh.

 

Friedmann, John. "Introduction." Journal of the American
Institute of Planners, Vol. 30, No. 2 (May, 196U),
82.

 

129

Friedmann, John. "Regional Development in Post-Industrial
Society." Journal of the American Institute of
Planners, Vol. 30, No. 2 (May, 196R), 8u-90.

Friedmann, John, and Miller, John. "The Urban Field."
Journal of the American Institute of Planners,
Vol. 31, No. A (November, 1965), 312-319.

 

Grieder, Calvin. "Program Budgeting May Not Solve Your
Problems." Nation's Schools, Vol. 81, No. 6 (June,
1968), 8.

Hansen, Willard B. "Metropolitan Planning and the New
Comprehensiveness." Journal of the American Insti-
tute of Planners, Vol. 3U, No. 5 (September, 1968),

2‘95.

Michael, Donald N. "Urban Policy in the Rationalized
Society." Journal of the American Institute of
Planners, Vol. 31, No. A (November, 1965), 283-288.

 

Perlman, Robert. "Social Welfare Planning and Physical
Planning." Journal of the American Institute of
Planners, Vol. 32, No. A (July, 1966), 237-231.

Seeley, John R. "What is Planning? Definition and

Strategy." Journal of the American Institute of
Planners, Vol. 28, No. 2 (May, 1962), 91-97.

Unpublished Materials

 

Statement paper. Michigan Council of State College Presi-
dents, Richard L. Miller, Executive Director.
February 26, 1970.

GENERAL REFERENCES

Books

Abrams, Charles. The City is the Frontier. New York:
Harper & Row, 1965.

Barclay, George W. Techniques of Population Analysis.
New York: Wiley, 1958.

Blaug, M., ed. Economics of Education: Selected Read—
ings. Baltimore: Penguin Books, 1968.

Blumenfeld, Hans. "The Modern Metropolis: Its Origins,
Growth, Characteristics and Planning." Selected
Essays. Edited by Paul D. Spreiregen. Cambridge:
The MIT Press, 1967.

Danielson, Michael N., ed. Metropolitan Politics: A
Reader. Boston and Toronto: Little, Brown and
Company, Inc., 1966.

Goldwin, Robert A., ed. A Nation of Cities. Chicago:
Rand McNally and Company, 1968.

Green, James L. Metropolitan Economic Republics - A
Case Study in Regional Economic Growth. Athens:
University of Georgia Press, 1965.

Hartley, Harry J. Educational Planning - Programming -
Budgeting: A Systems Approach. Englewood Cliffs,
N.J.: Prentice Hall, Inc., 1968.

Hirsch, Werner Z., ed. Elements of Regional Accounts.
Baltimore: The Johns Hopkins Press, 196“.

Isard, Walter, General Theory, Social, Political,
Economic and Regional with Particular Reference
to Decision-Making Analysis. Cambridge: The MIT
Press, 1969.

Wingo, Lowdon, Jr., ed. Cities and Space: The Future
Use of Urban Land. Baltimore: The Johns Hopkins
Press, 1963.

 

130

 

131

Zimmer, Basil G., and Hawley, Amos H. Metropolitan Area
Schools: Resistance to District Reorganization.
Beverly Hills, Calif: Sage Publications, Inc.,
1968.

 

Reports

Elements of Educational Planning. UNESCO. Educational
Studies and Documents (number A5).

 

Methods of School Enrollment Projection. UNESCO. Educa-
tional Documents (number 32). 1957.

Michigan - Local Planning Commissioner's Handbook. Pre-
pared by the Michigan Chapter of the American Insti-
tute of Planners. East Lansing: Institute for
Community Development, Continuing Education Ser-
vice, Michigan State University, 196U.

Unpublished Materials

Griselle, Sherman W. "Regional Planning Commissions in
Michigan: A Study of the First Five Regional Plan-
ning Commissions Officially Created Under Act 281
of the Public Act of 1945, As Amended." Unpublished
Master's thesis, Michigan State University, 1958.

Pethick, Donald R. "School and Urban Planning Coordina-
tion." Unpublished Master's thesis, Michigan
State University, 1966.

Wilberg, Richard Wesley. "The Function of Planning in
the Charter Township Form of Government: The Case
of Meridan Charter Township." Unpublished Master's
thesis, Michigan State University, 1969.

APPENDICES

132

APPENDIX A

Letter from Gaylord H. Yund,
State Planning Director,
State of Michigan

A Chronology of Educational

Reform in Michigan. First
Section.

133

_ L -on-nfi

 

SIAIEIDFIIKflflcmuI
mu onoucm

mam 8 macaw
°""" :nnnuuuzcoo;:;xnou
DUI-Can“.
EXECUTIVE OFFICE Wow-48913

May 11, 1970

Mr. George Stansbury
College of Education
Michigan State University
East Lansing, Michigan 48823

Dear Mr. Stansbury:
I hereby authorize you to use any part of our publication entitled
"A Chronology of Educational Reform in Michigan" in your doctoral

thesis, provided adequate source citation is referenced.

Sincerely,

{If} n 0-:
'-\ hi/dfi/W 44""
- , \
Gaylor H. Yund

State Planning Director

 

aa .

13H

 

TITLE:

AUTHOR:

SUBJECT:

DATE:

LOCAL PLANNING
AGENCY:

SOURCE OF COPIES:

HUD PROJECT N0.
SERIES NO:
NO. OF'PAGES:

ABSTRACT:

ABSTRACT

Educational Reform in Michigan
Office of Planning Coordination
Education Reform

Education Assessment

Education Finance

January, 1970

Office of Planning Coordination, State of Michigan
Clearinghouse for Federal Scientific and Technical
Information, 2285 Port Royal Road, Springfield,
Virginia, 22151

Office of Planning Coordination

Bureau of Policies and Programs

Lewis Cass Building

Lansing, Michigan 48913

For reference: HUD Regional Office Library
Region IV, Chicago, Illinois

HUD Library, Washington, D. C.
State Depository Library
Michigan State University
East Lansing, Michigan 48823
Planning School Library
Michigan State University
East Lansing, Michigan 48823

Michigan P—272

TR 111

17 plus appendices

On following two pages

ABSTRACT

The Michigan Legislature authorized an investigation into the

financing of elementary and secondary education. The report, entitled

"School Finance and Educational Opportunity in Michigan" was submitted

in December of 1967. In April, 1969, Governor William G. Milliken

established a Commission on Educational Reform to review the proposals

made by the legislative study, as well as other pertinent information;

and to develop a specific set of recommendations for legislative

action.

A professional staff, a Citizens Advisory Council, and a

series of public hearings were utilized in determining the recommendations.

The recommendations of the Educational Reform Commission are:

l.

Abolish the partisan elected Board of Education in favor
of a State Superintendent of Public Instruction appointed
by the Governor.

Reorganize present intermediate school districts, assign
them specific responsibilities, fund them by state
appropriations, and have them serve in closer coordination
with the State Department of Education.

Reorganize local school districts below a specific size.
Establish a state-wide property tax for funding school
Operation.

Establish a "classroom unit" method of distributing school
operational funds.

Expand the state-wide pupil assessment program and provide
program assistance based on need.

Provide funds for paying lay teachers' salaries for secular

subjects in the non-public schools.

Other recommendations include: (1) a 1970-71 school state-aid
bill; (2) necessary revenue measures; (3) a legislatively appointed
committee on teacher certification, evaluation, training, and
incentives; (4) establishment of neighborhood education centers
("street academies"); (S) a study on building utilization; and (6)
a study on.nanpower needs, training, and utilization.

These recommendations are incorporated into two constitutional
resolutions and ten bills. They are currently being considered in
the Michigan Legislature. Planning continues for enacting and

implementing this legislation.

EQHEAIIQEAL 3229324. IE EIQEIEAE

Office of Planning Coordination
Gaylord H. Yund, Director

Bureau of Policies and Programs
James C. Kellogg, Director

WILLIAM G. MILLIKEN, GOVERNOR

Urban Planning Assistance Project Michigan P-272 Work Item 1.1.1

January, 1970

in“: preparation of this document was financially aided through a Federal
grant from the Department of Housing and Urban Development, under the
lhdun: Planning Assistance Program authorized by Section 701 of the Housing
Actr<if 1954, as amended, administered by the Office of Planning Coordina-

titni, Bureau of Policies and Programs, Executive Office of the Governor.

TABLE OF CONTENTS
Page

The Process and Product of the Governor's
Commission on Educational Reform. . . . . . . . . . . 2
The Executive Recommendations and Legislative Action . . . 12
The Future of Educational Reform . . . . . . . . . . . . . l6
Appendixes . . . . . . . . . . . . . . . . . . . . . . . . 18

Special Message to the Legislature on Education

Summary of Public Hearings and Tabulation of Opinions
Received

Citizens Advisory Group

The Report of the Governor's Commission on Educational
Reform

Special Message to the Fall Session of the Legislature
on Educational Reform

Analysis of Educational Reform Bills and Copies of the
Educational Reform Bills

A REVIEW OF EDUCATIONAL REFORM IN MICHIGAN

I'm convinced that 20 years from now we'll look
back at our school system today and ask ourselves
how we could have tolerated anything as primitive
as education today. I think the pieces of an
educational revolution are lying around
unassembled, and I think we're going to put them
together in the next few years.

--- John Gardner

The State of Michigan has attempted to improve the quality of
life for its youth and people by reassembling the structure, finance.
and services of education into a new configuration. The vehicle
for change was a Governor's Commission on Educational Reform from
which recommendations for legislative action stemmed. The report
to follow reviews the three phases of educational reform:

l. The Process and Product of the Governor's
Commission on Educational Reform.

2. The Executive Recommendations and Legislative
Action on Educational Reform.

3. The Future of Educational Reform.

THE PROCESS AND PRODUCT OF THE GOVERNOR'S

COMMISSION ON EDUCATIONAL REFORM

The Need for Educational Reform

 

The need for educational reform did not appear suddenly in
Michigan. In July of 1966 Dr. Ira Polley, State Superintendent of
Public Instruction, made these observations to the State Board of

. 1
Education:

1. The State of Michigan is committed to the proposition that

the young people in all Michigan communities are entitled

not only to educational programs equal to the best now
provided in the State but second to none in the Nation.

 

2. The availability of high quality comprehensive programs
and services should not--indeed cannot--be dependent upon
fortuitous factors and circumstances.

3. Educational programs and services provided by the school
districts in Michigan vary tremendously from district to
district, not only in the quality of these, but in the
degree of comprehensiveness of these program offerings.

4. The variation, from school district to school district, in
the quality and comprehensiveness of program offerings is
due mainly, although not exclusively, to the variation in
all financial resources available to the districts.

5. Financial assistance to school districts from state
appropriations is one variable in the total financial
resources available to these; thus the amounts and means
of providing state financial assistance to school districts
must be viewed as an important, if not the most important
factor in the provision of high quality comprehensive
programs and services in all school districts in Michigan.

6. Since all state financial assistance to the public schools
since 1957 has been made by "piece-meal" amendments to Act
312 of the Public Acts of 1957, which is commonly known as
the'State School Aid Act," the time has arrived for an
objective study of the means, the kinds, and the extent of
financial aids provided to public school districts from
that source in relationship to all other sources.

 

 

 

1. Prepared statement of Dr. Ira Polley, which was presented
to the State Board of Education on July 27, 1966.

-2-

 

The Michigan Legislature authorized an investigation into the

financing of elementary and secondary education under Act 285, Public

Acts of 1966. The study began on October 1, 1966 and the final report

was presented to the State Board of Education in December, 1967.

J. Alan Thomas from the University of Chicago was responsible for

coordinating the research and writing the report. The report is

2
entitled, "School Finance and Educational Opportunity in Michigan."

The report expressed the following conclusions:

1.

While enrollments in the elementary grades show signs of
leveling off, and secondary enrollment continues to grow,
both adult education and pre-kindergarten enrollments
have been expanding.

There is great variation in the educational opportunities
available to students in the State of Michigan.

There exist critical problems in the financing of urban
education. These problems demand adequate financial
support from the citizens of the state.

In comparison with many other states, vocational education
in Michigan is inadequately supported from state funds.
Full programs of special education services are not
available in certain parts of Michigan. Even where they
are available, they may not be provided at the level which
is to be desired.

The present procedures for the financing of school
construction are very costly.

The pre-constitution portion of the teachers' retirement
funds is presently in serious financial difficulty.

Although there has been progress in the reorganization of
districts, problems of inequality in educational
opportunity and inefficient operation resulting from the
persistence of very small districts are still in existence.

 

2.

J. Alan Thomas, School Finance and Educational Opportunipy

 

in Michigan (Lansing, Micfiigan: ‘MIEhIgan Department Of EducaEIOn;_1968).

3.

Ibid, 90. 323-24.

 

8. The procedures for distributing state aid to school districts
are overly complex, and do not accomplish the purpose of
equalizing educational opportunity.

9. A revenue crisis also faces Michigan's non-public schools.
There is a proportional shift in the student body from
non-public to public school enrollment.

The report went on to suggest alternative actions to improve the

degree of educational opportunity and the method of financing education.
The report, however, was not designed to be a "Blueprint for Action."

Indeed, no action was taken to even attempt change in educational

structure, finance, and services until April, 1969.

The Establishment of the Governor's Commission on Educational Reform
Governor William G. Milliken, in a Special Message to the

Legislature on Education,“

reiterated the problems of Michigan education.
In addition, he proposed the establishment of a Commission on Educational
Reform. It would be the task of the Commission to foster a climate

for educational reform by reviewing previous research and proposals,

by encouraging new presentations of ideas and alternatives, and by
developing a specific set of recommendations to serve as the basic
guidelines for legislative action.

In particular, the Commission was charged by the Governor to

develop:

1. Specific goals and objectives of the educational system,
criteria for assessing its accomplishments, systems for
insuring its accountability. For example, we may need
to set a basic standard for literacy.

2. More effective use of school facilities, so they will better
serve students, and the total community.

4. The full text of this message is included in this report.
See Appendix A.

-4-

7.

Improved utilization of the latest educational technology,
such as closed circuit television.

Incentives for developing and rewarding excellence in
teaching, and for increasing teacher productivity.

Improved management, which would include not only
administration, but also consideration of optimum size
of school districts.

A proper balance of emphasis on college preparatory and
vocational education, related directly to the real needs
of the students and society.

A more equitable and more adequate system of financing
education.

The Governor, who served as Chairman of the Commission on

Educational Reform, named these members:

1.

5.

Daniel B, Burke of Bloomfield Hills, executive vice-president
of Capital Cities Broadcasting Corporation and general
manager of WJR; member of the communications committee of
New Detroit, Inc.

William M, 231_of Grosse Pointe, chairman of the board and
chief executive officer of Michigan Bell Telephone Company,
and former chairman of the educational subcommittee of New
Detroit, Inc.

Mrs. Robert Foerch of Dearborn, President of the Michigan
League of Women Voters, and former member of the Citizen

Advisory Committee for the Michigan School Finance Study

(Thomas Study).

 

 

.25. James W} Miller of Kalamazoo, President of Western
Michigan University; former State Comptroller and Secretary
of the State Administrative Board; President of the
Michigan Association of Colleges and Universities; and
chairman of the 1960-63 Governor's Commission on Constitu-

tional Reform.

Wilbur g, Munnecke of Leland, former vice-president and
general manager of the Chicago Sun-Times and Chicago Daily
News; former vice-president of the University of Chicago

and of Encyclopedia Britannica; former member of the National
Manpower Council at Columbia University; now consultant to
Field Enterprises, Inc.

"Special Message to the Legislature on Education? April 3,

1969, p. 5. (see attached)

6. Otis M, Smith of Detroit, former Supreme Court Justice,
Auditor General and member of the Michigan Public Service
Commission; past chairman of the State Board of Education's
Committee on Education for Health Care; now on the legal
staff of General Motors Corporation, and a regent of the
University of Michigan.

Dr. Robert Jewell, from the University of Chicago, and James

Phelps, from the University of Michigan, were selected as the

Commission staff. Both individuals had educational training and

experience.

The Activities of the Commission on Educational Reform

The recommendations of the Commission were the products of a
series of public hearings, the activities of a Citizens'Advisory
Council, staff work, and the actual Commission meetings.

Three public hearings were held around the State of Michigan.
The sites were Marquette, in the upper peninsula, Detroit, and
Lansing, the state capitol. Over one hundred and twenty statements
- were received through this process. A "Summary of the Public
Hearings" and a "Tabulation of Opinions Received" were compiled for
distribution.6

The public hearings served to give a perspective to the educational
problems of Michigan and allowed the Commission to hear and evaluate
the many suggestions made by educators and non-educators alike.

In order to maintain a close communication with the educational
and interested non-educational communities, a Citizens Advisory
Council was established. The council was composed of forty-three

individuals representing a wide range of educational interests and

6. Both of these documents are included in this report.

See Appendix B.
-6—

 

backgrounds.7 There were a number of educators on the council serving
to express their views and to represent the views of their organizations.
In addition, non-educators with some particular expertise regarding
education or who represented concerned organizations were included.
An inspection of the list of council members will verify the outstanding
character and the representativeness of the group.

It was the council's function to review and react to proposals
as well as make proposals of their own. As time progressed, they
reviewed and reacted to the ideas and alternatives which were emerging
from Commission diliberations.

During the entire tenure of the Commission it was the task of
the staff members to coordinate and communicate information and
suggestions between the public, the Citizens Advisory Group, and the
Commission.

Early in the life of the Commission the members met periodically
to review the information and suggestions. Later, the task was to
formulate alternatives, and finally, the Commission had to reduce the
number of alternatives into a reform package. This process was far
more difficult than its description implies. The number of alternatives
and their interrelation were so numerous and complex they defied simple

and immediate solution.

'The Repgrt of the Commission on Educational Reform
On September 30, 1969 the report of the Governor's Commission on

Educational Reform was submitted to the people of Michigan.8 Realizing

 

7. A list of the Citizens Advisory Group is included in this report.

See Appendix C.
The " eport of the Governor's Commission on Educational

Reform" is included at the end of this report. See Appendix D.

-7-

the difficulty in bringing immediate reform to the educational system,
two phases, each with its own set of recommendations, were defined.
The first phase defined long range reform goals and the second
outlined the immediate legislative and Executive actions which would
hasten the implementation of reform.9

The first phase recommendations were:

1. State Administration

 

To fix responsibility for operation of the Department
of Education structure and the position of State Superintendent
of Public Instruction be abolished by Constitutional amendment
and replaced by a State Director of Education appointed by
the Governor, subject to Senate confirmation. This
Constitutional amendment should be submitted to voters in the
primary election of August, 1970.

2. Regional Administration

 

To strengthen further the organizational structure and
responsibility of the State Department of Education, we
recommend that intermediate school districts be discontinued
and replaced by 10-15 regional education areas. The boundaries
of these regions should be set by a special commission, with
boundaries subject to approval of the Legislature.

The new regions we envision should operate in a well-
defined structure of accountability and responsibility. To
them should be assigned specific functions for which an
adequate level of funding should be assured by the state. These
functions should include, among others, special education,
vocational and technical education, transportation, data
processing, central business services, curriculum consulting,
and budget review of constituent districts.

The chief executive officer of each region should be
appointed by the State Director of Education and should be
required to utilize advisory committees appointed by the
constituent school districts.

3. Further Reorganization of Local Districts

 

 

To strengthen the regional administration, and to provide
wider educational opportunities, we recommend further

 

9. "Report of the Governor's Commission on Educational Reform",
September 30, 1969, pp. 7—16. (see attached)

-3-

S.

consolidation of local districts. To accomplish this, the
Educational Reorganization Committee should be reactivated and
should be given legislatively approved guidelines. These
guidelines should include the merging of all K-6 and K-8
districts into K-lZ districts and further reorganization of
K-12 districts. In further reorganization of K-12 districts,
consideration should be given to such factors as appropriate
size, density of population, distance traveled by pupils,
location of physical facilities, and the need to improve
social and racial integration.

This reorganization should have two phases. First, there
should be a period when, within legislative guidelines,

affected districts have an opportunity to reorganize voluntarily.

Second, in those cases where voluntary efforts fail, there
should be proceedings which result in the state reorganization
committee ordering reorganization.

 

 

Financial Sgpport p£_Education - A_State Responsibility

We recommend:

a.

that the constitution be amended to enable the
Legislature to collect a uniform statewide property
tax for school Operating purposes in place of the
existing local property taxes;

that measures be taken to assure that property
assessment practices are improved before the
statewide school property tax becomes effective:

that such a uniform state tax should be set at a

rate somewhere below the statewide average for school
operating purposes to provide property tax relief
where it is most needed;

that the existing constitutionally imposed millage
maximums on local property taxes be correspondingly
reduced to reflect the substitute of a state
property tax for school operations;

that, if local option property taxes are permitted

by the Legislature for funding meritorious educational
enrichment programs, the state, through legislation,
should guarantee an equal per mill yield for all
districts, impose a maximum on the number of mills
that can thus be levied, and exclude teacher salary
increases from the enrichment purposes for which the
additional money may be spent.

Equitable distribution - The Budget Process

 

 

We recommend that in fiscal 1972-73, a budget system be
adopted for the elementary, and secondary school system based,

-9-

' n".

The

at the district level, upon the classroom unit and employing
such factors as teacher-student ratios, professional base
salary rates adjusted by experience, education and region,
and overhead costs keyed to professional costs and based at
the regional level on students and programs.

Educational Evaluation

 

We recommend that the Legislature allocate funds
immediately to develop and administer a statewide educational
evaluation program. These funds should be used to contract
for the services of an agency which has the human and material
resources to develop such a program. Such a program should
provide pupil testing at several grade levels and in many
subject areas but impact heavily on the early grades. The
evaluation should be the basis for allocating additional funds
to pupils with learning problems and subsequent evaluations
should be conducted to determine the effects of such
additional funds on the learning levels of these pupils.

Non-Public Schools

 

The Commission recommends that the Legislature approve
salary support for certified lay teachers of secular subjects
in established non-public schools according to the following
plan: 50% of such teachers' salaries for that portion of the
time they teach secular subjects during the 1970-71 and
1971-72 school years, and 75% during the 1972—73 school year
when other recommendations for educational reform will be
fully effective.

We further recommend that the maximum allowance of aid
to nun-public schools in future years shall in no case exceed
2% of the total public school budget in Michigan; that by
1972, non—public schools receiving state aid be subjected to
the same evaluation, accountability, and quality controls as
public schools in Michigan and that a responsible legislative
committee be appointed to determine the effects of this
provision if accepted, on racial, ethnic, and socio-economic
segregation in Michigan education with a view toward making
recommendations designed to reduce such segregation in
conjunction with state aid to Michigan's non-public schools.

second phase recommendations were:

The Commission recommends that the Legislature, during its
fall session:

a. Pass a State Aid Act for the 1970-71 school year
providing substantially higher payments for program
improvement and a substantial increase in the
deductible millage to begin building toward a
uniform property tax rate. The membership total

_10-

mm

should be increased by about $100 million, and
about $25 million should be allowed for aid to
non-public schools, as outlined earlier. About
$500,000 should be included for setting up the
regional districts. Other needed increases would
go for remedial reading, special education, trans-
portation, environmentally disadvantaged, inter-
mediate districts, and retirement. Total state aid
fund costs for 1970-71 are estimated at $1,035
million, as compared with this year's $849 million.

Pass needed revenue measures, based on ability to
pay.

Pass resolutions enabling the people to vote on
constitutional amendments needed to improve the
state educational structure and permit the state

to levy a uniform Operational millage for schools,
both as outlined earlier in this report. These
amendments should go on the ballot in August, 1970.

Pass the entire educational reform package, so
implementation can begin immediately.

2. Also, the Commission recommends that the Governor:

a.

Ask the Legislature to appoint a joint committee
to recommend appropriate action on teacher
certification, evaluation, training, and incentives.

Ask the Legislature to approve an extensive pupil
testing plan which will establish levels against
which pupil progress can be measured.

Propose, as soon as feasible, neighborhood education
centers, street academies and other means of

meeting educational problems, with particular
reference to drop-outs. This should include

special attention to migrant, non-English speaking,
and economically disadvantaged children.

Propose means of achieving fuller utilization of
available buildings and facilities.

Propose new approaches to vocational and technical
training keyed to regional operation and allowing
maximum flexibility, which would include and,
indeed, encourage the practice of contracting with
business, industry, and other agencies for job
training and other educational functions.

-11-

THE EXECUTIVE RECOMMENDATIONS

AND LEGISLATIVE ACTION

ExecutiyguRecommendations

 

In October, 1969, Covernof William G. Milliken gave a Special
Message to the Fall Session of the Legislature on Educational Reform.10
In this message the Governor outlined the two Constitutional resolutions
and the ten hills which he was recommending for legislative action.11
They were:

Constitutional Resolutions:

1. State Organization: To abolish the State Board of Education

and replace it with an appointed State Superintendent of
Public Instruction.

 

2. State Property Tax: To institute a statewide property tax
and eliminate local levies for school operation.

 

Legislative Bills:

1. Regional Organization: To establish regional school districts
to replace the existing intermediate school districts.

 

2. Local Reorganization: To establish a commission to reorganize
local school districts to a minimum size of 2,000 pupils
allowing for extenuating circumstances.

 

3. 1970—71 State Aid: To increase the 1970-71 state school
Spending to $1,027 billion from the current level of $849
million. (Includes an estimated $25 million for aid to non—
public schools.)

 

4. Egture Budgeting: To set up a budget review system wherein
local school districts submit budgets to regional boards, to
the State Department of Education, to the Executive Office,
and finally to the Legislature.

 

5. Enrichment Levy: To allow a three mill "enrichment" levy
by local districts when the statewide property tax takes effect.

 

 

10. The full text of this message is included in this report.
See Appendix E.
11. A summary of the resolutions and bills are included within

the report; copies of the actual bills are at the end of the report.
See Appendix F.

-12...

6. Neighborhood Centers: To spend $100,000 this fiscal year to

encourage neighborhood social and cultural centers for school
dropouts.

7. Assessment: To spend $250,000 this fiscal year to expand

the current program of pupil testing and to fund innovative
improvement programs.

8. Teacher Incentive Program: To spend $50,000 to set up an
advisory board which would work with the Department of
Education over a three year period to develop teacher incentive
programs.

9. Property Tax Credit: To cancel income tax credits for property
tax payments and raise $116 million for schools.

10. Cigarette Tax: To raise the cigarette tax from 7 to 12 cents
per pack.

Legislative Action

The following summarizes the legislative actions taken on the

various resolutions:

1. State Organization

 

Senate: The plan for an appointed State Superintendent
was amended to have a five-man board appointed
by the Governor. This resolution failed to
receive the two-thirds vote.

House: Still in committee.

Comment: Several other resolutions proposing various
sizes and elements of an appointed State Board
of Education have been introduced in both
Senate and House.

2. State Property Tax

 

Senate: The rate was amended down from 16 to 12 mills
but failed to receive the required two-thirds vote.

House: Still in committee.

Comment: An alternative for a 20 mill statewide levy with
a $3,000 homestead exemption was also defeated.

The following is a summary of the legislative actions taken on
the various bills:

-13-

 

1. Regional Organization

 

Senate: A substitute was adopted changing the selection
and powers of the regional superintendent and
board. This bill was sent back to committee
before a vote was taken.

House: Still in committee.

Comment: The financing of the regional service areas has
not been resOlved. It was intended that they
would be fully state funded. Action on this bill
will not take place until some questions of
long-range school finance are answered.

2. Local Reorganization

 

Senate: Reported to the Senate floor but not voted upon.

House: Still in committee.

 

Comment: Amendments have been offered to mandate
reorganization to non-kindergarted through 12th
grade districts rather than using the suggested
2,000 pupil guideline.

3. 1970-71 State Aid

 

Senate: Approved a $1.001 version of the bill.

House: The Education Committee approved a $1.065 version
and the Appropriations Committee a $1.024 version.
The bill was under consideration when the House
adjourned in December, 1969.

4. Future Budggting

 

Senate: Still in Education Committee.

House: Still in Education Committee.

Comment: This bill predicates a greater state role in
school finance, an issue which has not been

fully discussed.

5. Enrichment Levy

 

Senate: Still in Education Committee.
House: Still in Education Committee.

Comment: This bill is closely related to the budgeting bill
and will probably be considered jointly.

-14-

 

10.

Neighborhood Centers

 

Senate: Still in Education Committee.

House: Passed in the House.

 

Assessment
Senate: Reported out of Education Committee.
House: Passed in the House.

Teacher Incentive Progggm

 

Senate: Passed the Senate Education Committee and pending
on the floor.

House: Passed in the House.

Properterax Credit

 

Senate: Passed on the floor.
House: Passed in committee but defeated on the floor.

Cigarette Tax

 

Senate: In Taxation Committee.

House: Amended to 4 cents and passed on the floor.

-15-

 

THE FUTURE OF EDUCATIONAL REFORM

Social change is not necessarily a rational process and, therefore,
it is not predictable. However, the problems which have been identified
by the "School Finance and Educational Opportunity in Michigan" study
and by the Governor's Commission on Educational Reform are accepted,
in the most part, as being accurate. Both the public and educational
communities share in this assessment. The disagreement is over the
solutions to these identified problems. The problems will not be
eliminated, most agree, until significant and meaningful changes are
instituted and that these changes can only be brought about by
legislative action.

The educational problems of Michigan which must be dealt with can
be expressed in these general categories:

1. Adequacy and equality of educational opportunity.

2. Fiscal adequacy and equity of tax burden.

3. Placing responsibility, authority, power, and accountability

effectively at the various levels of the educational hierachy.

4. Reducing employer-employee conflict.

5. Providing a climate for innovation in instructional practices.

At the time of this writing, there appears to be a favorable
climate for educational reform. The leaders in the Legislature have
agreed to devote the first month of the new legislative year to the
tinfinished issues of educational reform. The press coverage continues
to be extensive setting a high level of expectancy among public and
educational interests. Educational and civic organizations continue to

<devote their meetings to the question of educational reform. As a

-16—

 

 

result, numerous refinements to the original proposals have been
suggested and, in addition, some major alternatives have been recommended.
On the other hand, educational reform has not been effectuated in
Michigan. Although the bills are moving through the legislative process,
not one has yet emerged on the Governor's desk for signature. There
is a continuing need for developing and disseminating relevant
information for legislative decision-making. Undoubtedly, the proposed
bills and resolutions will not end the need for educational legislation.
Even after this legislation is enacted, the problem of implementation
exists. A significant task still looms in the future--one of planning

and achieving continual educational reform.

-17-

APPENDIX B

Letter to Superintendents
from the State of Michigan,
Department of Education.

Schedule of Workshop meet-
ings.

Samples of workshop ques—
tions.

Map of District Reorgani-

zation for Workshop
meetings.

157

STATE OF MICHIGAN

DEPARTMENT OF EDUCATION sure soup or summon

Lansing, Michigan 48902 PETER OPPEWALL
‘ President

THOMAS I. BRENNAN
Vice President

JOHN w. PORTER MICHAEL J. DEFB
Adina Superintendent Suntan
1‘ PM“! WM LADIES F. omn-

Treasurer

 

GORTON RIETHMILLER
May 1 : 1970 MARILYN JEAN KELLY
CHARLES E. MORTON
EDWIN L. NOVAK. 0.1).
cov. WILLIAM c. MILLIKEN
EX-Officio

Dear Superintendent:

The State Department of Education is requesting your presence at a
workshop on reorganization. The workshop will be held on Wednesday

May 13, 1970, at 9:30 a.m. The coordinator will be Dr. William J.
Rogers, Superintendent of the Ingham Intermediate School District and
the location will be the Ingham Intermediate Offices at Mason, Michigan.

 

The school district Reorganization Section of the Department of Education
is currently involved in long-range planning relative to reorganization.
It is generally assumed that this planning has implications at the local,
intermediate and state level; hence, requiring communication and
cOOperation between the three levels.

The above-mentioned workshop is one of a series. The proposed agenda
is administrator oriented, however, discussions may be broad enough to
interest school board members or other concerned educators.

It is assumed also, that pertinent subjective and objective data con-
cerning the attitudes of local and intermediate superintendents towards
various reorganization proposals that have been introduced in recent
bills and by the State Board of Education can be obtained. Further,
there is a possilility of establishing liaison cormnittees for the primary
purpose of providing feedback to constituent districts. (Note: All
workshops have been scheduled on a geographical basis.) The specific
purposes of the worskhops will be to:

1. Establish Communication between the state department and
local districts on the issue of reorganization.

2. Provide the local district up-to-date feedback of legislative

and state department of education action relative to school
district reorganization.

158

Page - 2

3. Obtain the general reaction (at the local level) to various
reorganization proposals.

4. Provide direct interaction for the purpose of sharing
clarification of terminology used in various bills, and

5. Obtain additional data relative to local school district
reorganization.

We will appreciate your presence at this meeting. Please advise us
and/or your meeting coordinator of your intention relative to this
request. If you have any questions, please contact Mr. David L. Donovan,
of the Reorganization Section, State Department of Education or your
meeting coordinator. A list of coordinators, tentative workshop agenda,
and scheduled workshops to date is attached.

Sincerely

  

Attachments

159

 

f‘fi‘

l4

1 .

NO‘

8.

10.
ll.

12.

#

VII-\WNH
0..

Western U.P.
Central U.P.
Eastern U.P.
COP

Upper W.

Upper E. & Mid. Cent.

West Central (Except
Kent)

Low Central

Low E. Central

Thumb

S.W. Corner

8. & S.E. Corner
(Except Wayne Co.)

WORKSHOP MEETINGS

# of Total Possible
Dist. Dist. Site

25 28 Kingsford

26 40 Escanaba

l3 l4 Rudyard

23 29 Gaylord

24 28 Traverse City

21 4O Higgins Lake

23 40 Muskegon

42 70 Mason

26 57 Flint

33 47 Caro

34 68 Berrien

Springs
33 93 Adrian

Coordinator

 

Borga (April 23, 1970)
McClintock (April 21, 1970)
Speicher (Feb. 25, 1970)
Hanson (Feb. 23, 1970)
Gelston (Feb. 5, 1970)

Goldbold (Apr. 16, 1970)

Owens (May 4, 1970)
Rogers (May 13, 1970)
Davis (May 14, 1970)
Scott (April 9, 1970)
Barkmeier (Mar. 23, 1970)
Porter (Apr. 7, 1970)

Number of districts is an estimate - includes all nonhigh schools

160

 

rz‘ .ri

1.

U.

REORGANIZATION MEETING

What factors should be considered in the development
of criteria for school district reorganization? What
priorities should be assigned?

(Examples of criteria used in developing guide-
lines previously have included: operate K-12
program, economy of Operation, potential for
quality and breadth of educational programs,
size of enrollment and/or area, density and
trends of population, transportation time,
segregation, existing school facilities,
natural community of interests and socio-economic
levels, potential to use personnel and facili—
ties to maximum efficiency, natural physical
barriers, existing political boundaries, local
financing ability)

What responsibilities should the local district,
intermediate district and state department assume for
long range and regional educational planning?

Assume future school district reorganization to
achieve a high level educational potential. What in
your opinion would be the ideal area plan for your
district?

In what ways can the state department work coopera-
tively and effectively with local districts on
reorganization?

 

Reorganization Meeting - Evaluation

Your evaluation of today's meeting will be appreciated.
Also, any suggestions for improvement.

161

REORGANIZATION WORKSHOP

What factors should be considered in the develOp-
ment of criteria for local school district re-
organization? What priorities should be assigned?

(As examples: The bill contains criteria which
shall be used in developing guidelines as fol-
lows: Operate K-12 program, reasonable efficiency
Of operation, not of excessive enrollment or area,
density and trends of population, transportation,
use of school buildings, not promote segregation.)

The reorganization bill (H.B. 3883) under consid-
eration in the legislature requires the develop—

ment of curriculum guidelines and basic standards
which constitute a minimum comprehensive Offering.

What should be included in the guidelines and
standards?

(a) The curricular offerings
(b) The ability to develOp a "local" curriculum.

(c) Effective and efficient utilization of
personnel and facilities.

(d) Administrative effectiveness and efficiency.

162

REORGANIZATION WORKSHOP

What future course would your school district
take:

(a) Assuming passage of H.B. 3883 this year?

(b) Assuming no local reorganization bill from
the legislature this year?

Assume reorganization of local and intermediate
districts. What change in roles and functions
would be necessary and/or desirable for each
echelon:

(a) local, (b) intermediate, (c) state

In what ways can the state department work
cooperatively and effectively with local dis-
tricts on reorganization?

 

Reorganization Workshop - Evaluation

 

Your evaluation of today's meeting will be
appreciated. Also, any suggestions for
improvement.

163

REORGANIZATION WORKSHOP MEETINGS

 

 

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