Federal Aid and Economic Development in Nonmetropolitan Communities: The UDAG Program

In 1977 Congress enacted the Urban Development Action Grant(UDAG) program to help distressed communities develop economically.This article draws from case studies of ten nonmetropolitancommunities with Action Grants. It focuses on the factors thataffect the completion and benefits of projects, particularlyrelations with private developers and local management capacity.The studies show that the UDAG program has been flexible inaccommodating differences in economic development needs as perceivedlocally. However, many of the projects have not produced thenumbers of jobs originally proposed. Several communities encounteredproblems with private developers who either abandoned the projectsor failed to produce expected results. Smaller communities inthe sample tended to lack grantsmanship, management, and legalresources.     

The Life and Death of UDAG: An Assessment Based on Eight Projects in Five New Jersey Cities

The federal Urban Development Action Grant program, begun in1977, provided $5 billion over eleven years revitalizing severelydistressed urban places through the encouragement of privatesector investment. Designed to assist commercial, industrial,and housing projects that "but for" the federal grant wouldnot be built, the program was characterized by a streamlinedgrant-making process administered by finance and developmentexperts. Eight UDA G projects in five New Jersey cities, firststudied in the proposal stage in 1979 and revisited in 1987,show that the UDAGs succeeded in attracting development to thesehard-pressed cities. Although the projects succeeded, the programwas unable to arrest the more general distressed conditionsof the cities. During the Reagan years, the administration soughtto end the program. Congress supported it, but reduced the fundingeach year. In an effort to gain support for the program, eligibilityrequirements were broadened to include more localities. Theseefforts failed, and in 1988 Congress did not fund the program.Despite its demise, UDAG is recognized as having stimulatedurban revitalization and having created a new model for privatesector and public sector collaboration in economic development.     

Small City Autonomy in the Federal System: A Study of Local Constraint and Opportunity in California

How severe have been the restrictions on the autonomy of localgovernments, as state and federal mandates and grant programsproliferated in the 1970s? This study of mandate and grant impactsin nine, small California cities suggests that local controlhas not been reduced as much as the recent literature of federalismargues. Municipal officials in these communities perceived arange of effects according to program areas. Clean water standardswere negatively viewed, while state planning mandates actuallyserved to further local goals. Most of the cities did not hesitateto compete for grants, despite their many strings. Based onthe "hard case" of small cities—which are relative newcomersto grant and mandate programs, and generally change-resistantin attitude—this study points out some positive localgovernment impacts of federal-and state-local entanglements. ¹ As associate investigator of the project on which this paperis based, Joan Hogan of the Institute of Governmental Affairs,University of California at Davis, contributed significantlyto the research.     

The Fiscal Consequences of Changing Federal and State Revenue Policies: The Case of Small Oregon Cities

This article examines the fiscal consequences for twelve, smallOregon cities of recent changes in federal and state intergovernmentalrevenue policies. Many small local governments have experienceddouble revenue reverses in recent years—reductions inown-source revenues because of economic decline as well as decreasesin intergovernmental revenues, especially federal aid. The twelvesmall cities are compared with all 241 cities in Oregon andthe 136 Oregon cities in the 1,000 to 49,999 population range.Using aggregate and interview data, a major finding is thatalthough stabilization and/or decline in federal-state revenuesharing and entitlement program funds have accentuated difficultlocal revenue situations, economic decline has been the moreimportant contributor to the fiscal stress of the twelve smallmunicipalities. Most of the twelve cities had limited fiscalcapacity—as indicated by low assessed property valuations—makingit difficult to produce sufficient revenue to meet basic publicservice needs. These cities were also unable to get citizenapproval of increases in property taxes.     

The emergence of stable racially and ethnically diverse urban communities: A case study of nine U.S. cities

Abstract

We examine the characteristics of 14 stable racially and ethnically diverse urban communities in 9 U.S. cities and point to policies that could strengthen these communities and encourage the growth of more diverse neighborhoods in American cities. The cities examined are Chicago; Denver; Houston; Memphis, TN; Milwaukee; New York; Oakland, CA; Philadelphia; and Seattle. University researchers and community leaders in each city collaborated on the research for this project.

We identify two types of stable diverse communities, “self‐conscious” and “laissez‐faire,” which have evolved for different reasons and with different characteristics. Stable diverse communities will not just happen, but they can be influenced by a number of policy recommendations stemming from our research. These include helping individuals and organizations take leadership roles in their communities, strengthening and enforcing fair housing and antidiscrimination laws, earmarking economic resources to encourage neighborhood diversity, and creating community safety and jobs programs.     

Assessing Economic Change in HOPE VI Neighborhoods

Abstract

Neighborhoods surrounding large public housing developments have historically been economically distressed. The revitalization of many developments through the federal HOPE VI program, in conjunction with increased inner‐city lending and a strong economy for much of the 1990s, should theoretically lead to improvements in these neighborhoods. This study analyzes changes in selected HOPE VI neighborhoods since 1990 and compares them with changes in other high‐poverty communities, as well as with overall trends in their respective cities.

At the beginning of the decade, conditions in HOPE VI communities were almost universally worse than in other high‐poverty areas. By the end of the decade, the relationship was reversed. The changes resulted from a number of interrelated factors, including the redevelopments themselves, other private market activity, specific commitments of resources by city governments, and increased attention to the communities by lenders. These neighborhoods still qualify as economically distressed, but economic development now seems a realistic possibility.     

Binational Vital Signs: A Quality of Life Indicator Program for the San Diego–Tijuana Metropolitan Region1

This is a study of a binational community indicator program for the San Diego–Tijuana metropolitan area (SDTMA). The key objective of the research was to produce a citizen-generated community indicator program (CIP). The study is closely based on the work of the two focus groups held in the two cities and offers a small program that has immediate practical potential for implementation. The program consists of a suite of thirty-five indicators for which data has been identified and provided. Fifteen of the indicators apply to Tijuana, twenty to San Diego. The program is built around principles of community well-being or quality of life (QOL). It is the first subregional attempt at the scale of the United States-Mexico Bi-National Region (BNR) to integrate existing environmental, social, and economic data into a single coherent program to inform community leaders about the condition of the SDTMA. The region covered by the CIP generally consists of the urbanized core of metropolitan Tijuana, the city of San Diego, and associated cities like Chula Vista and El Cajon within the southern part of San Diego County.     

Reinventing the central city as a place to live and work

Abstract

Public policies for urban development have traditionally emphasized investment in physical infrastructure, the development of large‐scale commercial facilities, the construction of new housing, and the renewal of existing neighborhoods. Most efforts to revitalize central cities by building new facilities for visitors have focused on suburban commuters and tourists. At the same time, many housing initiatives in central cities have concentrated on low‐income communities because outlying suburban areas have attracted traditional middle‐income households.

This article argues that emerging demographic and cultural trends—combined with changes in the structure of business organizations and technological advances—provide new opportunities for cities to retain and attract middle‐class households. Using gay and lesbian populations as an example, it focuses on the role that nontraditional households can play in urban redevelopment. In light of the rise of nontraditional households and the growth of self‐employment and small businesses, cities should adopt policies that make them attractive places in which to live and work.     

Applicant Perceptions of State Priorities in the Illinois Small Cities CDBG Program: Implications for Local Targeting

The State of Illinois has targeted economic development as amajor priority in the Small Cities Community Development BlockGrant program, although the state still accepts applicationsfor public facilities and housing rehabilitation. This articleexamines the impact of this state priority on the applicationbehavior of small cities. We find that grant applicants perceivethat the state's economic development emphasis decreases theirability to be successful in obtaining housing rehabilitationgrants. This perception has had an impact on subsequent applicationbehavior. Cities no longer apply for grants that are most likelyto benefit directly those with low and moderate incomes.     

Targeting Federal Grants: The Community Development Experience, 1950-1986

This article examines the degree to which federal communityand economic development programs target federal assistanceto the nation's neediest communities. Grant allocations to citieswith populations of 50,000 or more were examined for six majorfederal urban programs during 1950–1986. Federal programsthat include both needs-based eligibility and allocational featureswere found to achieve the highest levels of targeting. The analysisfurther shows that while urban conditions in the nation's mostdistressed cities continued to deteriorate during the 1980sin both relative and absolute terms, grant allocations underthe major federal urban program, Community Development BlockGrants, have not responded to the changing incidence of urbanhardship.     

Cartographies of Transformation in Mostar and Cape Town: Mapping as a Methodology in Divided Cities

ABSTRACT

All cities, as heterogenous spaces, are divided. However, conflict, in various forms can create cities which are monikered as ‘divided cities’. The divisions in these cities involve the segregation of communities and entrenchment of social and political divides. Through case studies situated in the spatially divided cities of Mostar, Bosnia and Herzegovina, and Cape Town, South Africa, this article demonstrates local resistance to top-down divisions. Theoretically and methodologically, this article contributes an understanding of mapping as a methodology which can materialise the spatial agency of local actors and can contribute to more inclusive memory work and reconstruction.     

New Federalism and Midwestern Cities: 1981-1985

President Ronald Reagan introduced a major new domestic initiativeduring his first term. The intent was to reduce the size andscope of the federal government and to increase the fiscal responsibilityof local governments. Mail questionnaires were sent to mayors,city managers, and finance officers in cities over 25,000 populationin Illinois, Indiana, Michigan, and Wisconsin asking the respondentsto indicate their perception of the impact the Reagan programhad had on their cities in the previous year and their perceptionof its anticipated impact. Response rates were nearly 50 percentfor each survey. The respondents consistently overestimatedthe impact the Reagan program would have on their cities. Thefollowing analysis explores the relationship between perceivedeffects and city and respondent characteristics, such as size,partisan identification, and state. While the Reagan policieshave had a substantial impact on these cities, the impact isnot as negative as the respondents originally thought.     

Civic Engagement and Sustainable Cities in the United States

Over the last decade, at least 42 U.S. cities have elected to pursue sustainable cities programs to improve their livability. Some programs are broad, involving smart growth efforts, and others are narrowly targeted, including bicycle ridership and pesticide-reduction programs. A recurring theme in these cities is the role of public participation in shaping and implementing these programs. In cities where the sustainable cities idea first emerged in local grassroots organizations, such as Seattle, these programs owe their existence to public involvement. Other cities have taken a top-down approach, treating sustainability as a matter for experts rather than ordinary citizens. Civic engagement is manifest both in the development of the sustainability program and as an explicit goal of the sustainability program. This article examines the role of civic engagement in these programs and defines a research agenda by identifying hypotheses about the importance of public involvement in sustainable cities programs.     

Do Industrial Tax Abatements Spur Property Value Growth?

Despite ongoing debate regarding the effectiveness of tax abatements, Michigan's Industrial Facilities Tax (IFT) abatement program has been widely and extensively used to boost local economic development. In this article, we estimate the effects of industrial property tax abatements on industrial, residential, and commercial property value growth in the context of regional competition for a panel of 152 communities in the five counties surrounding Detroit from 1983 through 2002. We find that: (1) offering tax abatements yields statistically significant positive impacts on industrial property value growth; (2) the impacts are larger in high tax than in low tax communities; (3) there are positive spillover effects of industrial tax abatements on residential and commercial property value growth; (4) tax abatements offered in competitor communities do not appear to influence own industrial property value growth; and (5) changes in the own as well as competitor property tax rates are important determinants of industrial property value growth. However, the fiscal benefits of tax abatements are quite small as compared with the costs of offering abatements even when spillover benefits to residential and commercial properties are considered.     

STATE URBAN POLICY: "New" Federalism In Virginia, New Jersey and Florida

The recent rediscovery of federalism has left the nation's governors with expanded responsibility and limited federal support. In return, they were promised greater fiscal flexibility, a real partnership in program design, and protection from unfunded mandates. However, states seem unwilling to offer the same guarantees to their cities that they sought from the federal government, even as they expand city responsibilities and limit state aid. This paper explores the extent to which Virginia, New Jersey and Florida have provided the fiscal flexibility and partnership, except in the area of economic development, but the diminished fiscal capacity of some distressed communities relative to their suburban counterparts render them unable to benefit from such efforts.     

Collaborative Partnerships and Crime in Disorganized Communities

Collaborative partnerships can be an effective strategy for crime prevention, especially in disorganized communities. Using ordinary least squares regression with 414 American cities, this article finds that police departments with many collaborative partnerships are able to promote informal social control within their communities and capitalize on the resources available to them with the help of other groups. This contention is supported by the effects of collaborative partnerships on crime rates in disorganized communities in comparison to well‐organized communities. Thus, collaborative partnerships of public organizations with other groups may insulate disorganized communities from the effects of community disorganization on levels of crime.     

Comment on John T. Metzger's “planned abandonment: The neighborhood life‐cycle theory and national urban policy”

Abstract

I take strong exception to the idea that theories of neighborhood change, in and of themselves, caused the decline of inner cities. Rather, the demographic, social, and economic forces that existed in the postwar years caused some inner‐city neighborhoods to decline. The replacement of working‐class and middle‐income households by households with much lower incomes, on average, was the single biggest cause of neighborhood decline. Metzger ignores this fact as an alternative explanation for why some neighborhoods declined. It is highly implausible that my theories and those of other urban experts had such a strong impact on the public policy, building, and finance communities. Because people were responding to real conditions, it is likely that the same events would have occurred even if my model of neighborhood change had never been developed.     

中国城市化进程中社区发展的思考

中国近三十年来的快速城市化进程带来了许多前所未有的社会问题,给城市的管理和发展提出了新的挑战。其中值得重点关注的一个挑战就是如何改造、更新和发展城市社区。结合中国现阶段的发展现实,将社区按各自的特点进行分类,分析了它们的成因、功能和存在的问题,提出要重新认识这些社区的价值,结合新的社区发展理念,有针对性地制订不同的发展战略,实现社区发展的目标,保障城市化过程的健康稳定与和谐。     

Fishing,food, and harbor community development in Massachusetts

Fishing communities are highly dependent on fishing and maritime economies. Regulations and techniques attempt to control quotas, types of fish caught, and the gear utilized in the industry. Furthermore, societal preferences and markets dictate the value of the fish transacted. The purpose of this paper is to analyze the relationship and recent changes between fishing and community development in two fishing communities in Massachusetts: Gloucester and New Bedford. Moreover, I also discuss the role that fish food plays in cities and their foodways. The research asks how these communities have adapted to changes in fishing stocks, techniques, socioeconomic trends and regulations during the last two decades. A resilience public affairs approach centered on seven governance dimensions of fisheries is utilized to analyze the case studies. It is argued that specializing in niche markets, developing adequate industry facilities, and nurturing the cultural aspects endemic to each fishing community has positively influenced the communities' capacity to withstand major societal transformations. The harbor plans for Gloucester and New Bedford provide some plausible directions toward future improvements in the fishing sector.     

Municipal Support for Social Entrepreneurship

This study examines how cities help social entrepreneurship—the activity of private individuals and organizations taking initiative to address social challenges in their communities. Based on a national survey and in-depth interviews among jurisdictions with populations over 50,000, the authors find that municipalities help social entrepreneurs by increasing awareness of social problems, and by helping them to acquire resources, coordinate with other organizations, and implement programs. Nearly three-quarters of cities provide active or moderate support, which is positively associated with the perceived effectiveness of nonprofit organizations in their communities.