REPORI ON THE BOSTON HOUSING AUTHORITYS
MANAGEMENT PROGRAM DURING COURT RECEIVERSHIP
1.980-1984
A
BY
BATES LEE
ROCHELLE A.,
BOSTON UNIVERSITY
M. A.
(1977)
UNIVERSITY OF MASSACHUSETTS
(1975)
B. A.
IN PARTIAL FULFILLMENT
SUBMITTED
OF THE REQUIREMENTS
FOR THE
DEGREE OF
MASTER OF CITY PLANNING
AT THE
MASSACHUSETTS
INSTITUTE OF TECHNOLOGY
JUNE 1984
1ROCHELLE A.
c
THE AUTHOR HEREBY
AND
DISTRIBUTE
BATES LEE
GRANTS ~TO M., I, T.
COPIES
PERMISSION
OF THIS THESIS
TO REPRODUCE
IN WlHOLE OR
DOCUMENT
IN PART
SIGNATURE
OF AUTHOR
CERTIFIED
BY*.
F i.L1p
ACCEPTED
. .
.
I
7ffis/d SLUp
i sor
BY
Fy1
:r
. -k7a
me r
MASACHUSN:,
NSiLg
OF TECHNmLOGY
Rot-h
AUG 1 0 1984
......
A eSport on the Boston Housing Authorty'
. Enaggenent Program During Court Receivership
M
1980- 1984
by
Rochelle A.
Bates Lee
submitted to the Department of Urban Studies and Planning
in partial fulfillment of the requirements for the
degree of
Master
in
City Planning
Abstract
This
report is a general review of the Boston
Housing
Authority's management initiatives during the period of 1980
through
1984,
the
first
four
years
of
its
court
receivership.
The
Authority was
placed
in
receivership
because
of its inability to remedy its substandard
housing
conditions.
During that time,
the BHA made some notable strides in
restoring
its managment capacity.
It embarked upon a new
decentralized
management effort,
increased the
efficiency
and
responsiveness of its central departments and
began a
comprehensive capital improvements program.
There
still
ex ists,numerous housing
code
violations
throughout the Authority's properties and many are concerned
that the Authority, once out of receivership, will no longer
be capable of its present day, intensive renewal efforts.
Fortunately,
these
four years of
court
receivership
have served the Authority well. With the continued diligence
of BHA's staff and residents, there is little doubt that the
the
Boston
Housing
Authority
is headed
for
long
term
recovery.
As
the
Authority
enters
post-receivership,
its
governing
structure and operating practices must
not
only
ensure
that
the BHA fulfill
its
mandate to
provide
safe,
decent
and
sanitary
low-rent housing
but
in
so
doing,
empower
tenants to impact the actions of the Authority
and
other
institutions whose
services and support
shape the
lives
of public housing families.
1
tAkknowl edqemegnts
A special thanks to the many who assisted me in
this
effort.
I am particularly grateful
to numerous staff
and
residents
of the Boston Housing Authority,
for their
time
and encouragement.
Their collective dedication has made the
many accomplishments of court receivership possible.
I also would like to thank Phil Clay and Lee Staples,
for their insightful advice and challenging criticisms which
guided me through this
thesis project.
Much
love and appreciation to my family whose support
stayed
and stayed,
despite the
often,
trying
times.
In
dedication to Mom and Judy.
.able
of Contents
Abstract
page 1
Ac-cknowl edgements
page 2
Introduction
page 4
What Happened?
page 5
Chapter I
BHA's Role in
Chapter
City's Housing Market
II
BHA's Operational
Chapter
Court
Decline
page 15
III
Reforms
Chapter IV
The Goals of
Predating
Recei vershi p
Receivership
Chapter V
The Authority's
Early
Initiatives
5
page 37
page 47
VII
Initiatives Intended to
Local Housi ng Services
Chapter VIII
Reviewing BHA's
Chapter
Lool-::ing
page 26
page
Chapter VI
Reshaping the Management Model
Chapter
page 9
Improve
Management
Performance
IX
Towards Post Receivership
pag
72
page
85
page 92
Conclusion
page 97
Footnotes
page 100
Bibliography
page 102
Introduction
The Boston Housing Authority,
(BHA),
in
1935 to take advantage of federal
of
low rent public housing.
elderly
lease
units
sanitary and decent housing to families or
Since
its
Subsequent state legislation
public housing authorities
in
the construction
Boston's housing authority was
persons of low income.
also provided
in
According to the Commonwealth's
enabling statue, (MGL 121 B),
to provide safe,
aid
was established
the private sector
formation,
with the ability to
for low
income
the Authority has become the
largest public housing agency in the nation,
17,000
units
of
renters.
family and elderly
fourth
managing
housing
and
over
leasing
another 5,600 apartments from private owners.
Of Boston's 200 ,000 low or moderate income
nearly one fourth of
operated unit,
entire
rental
vacancy
Located
those persons,
or 55,000,
manages
fifteen
31
live in BHA a
accounting for nearly one tenth of
inventory.
From 1970 to
1980,
rate dropped from 7% to its current
in
residents,
neighborhoods
family developments,
operates
one
extensive
leased housing program.
community
of Boston,
in
the city wide
rate
of
today,
38 elderly
residence,
Boston's
2%.(1)
the BHA
projects
addition
to
and
its
What Hapend?
After
on
nearly a decade of
the Authority's failtures
public
the
from
goverance
the
Massachusetts
of
consolidate the powers of
controversy
attorneys
Superior
its
Court
success-fully
quasi-public
Board
that
administration
without
and
BHA
and
to
goverance and administration under
By placing the
Housing Authority in court receivership,
concluded
Boston's
to remove
auspices of a court appointed Receiver.
Boston
centering
as a housing agency,
housing residents and their
persuaded
the
legal
his unfettered
operations of
the
control
the
BHA,
judge
over
the
the
numerous
substandard conditions found in public housing could not,
good faith,
be substantively addressed.
Historically,
controlled
housing
in
Boston's public housing program had been
by the city's
ruling political
interests.
Jobs,
and votes were important brokering chips for
which
city
politicans
first
began,
public housing communities were for the working
poor
only.
And
openly vied.
for
white
Back when
families
Boston's
only.
program
And
for
the
politically connected, only.
During its first twenty years of operations,
of
Boston
received
important
housing program. The physical
social
order
authoritative
politicians
operation.
benefits
from
the city
its
public
plants were relatively modern,
was
resolutely
and
powerful
expressed a vested
maintained
manager
by
and
interest in
a
the
BHA's
Everyone seemed to agree that a locally
strong,
city
s
efficient
governed
and
controlled,
federal
construction
conceived
was
public
housing
and
arrangement.
mortgage
financed
monies,
For the city,
to lose and much
little
program,
it
was
with
a
well
seemed that
to gain from a thriving
there
public
housing agency.
Then,
the
in
short
span of a barely
more
than
a
decade,
the bottom fell out,
powerful
institutions in a state of advancing paralysis. The
leaving one of the city's most
time was the sixties and Boston,
the
throes
of coping with changing attitudes
poor, racial
and ethnic groups and liberal
Civil
local
rights
experience
Boston's
rallied
as was the nation,
public
initiatives
schools.
around
the
run the city's
In
seat of
was elected.
combination
of
ultimately
electoral
By
lead
a variety
to
a
community
a
of
groups
clash
mayor,
who
government for
an
These forces, in
financial
political
the
70's,
after years of
congressional
factors,
between
would
Boston's
to provide,
then
to
later,
public
successes.
Great
Society
federal
housing policies began to
into a conservative direction.
limited
tumultous
leaders and public housing tenants.
programing,
subsidies
ideas.
desegregation
1963,
unprecedented sixteen years,
with
a
the
and highway construction plans
from leveling their neighborhoods.
ultimately
political
Coalitions of
to stop urban renewal
would
towards
culminated in
centering
was in
Efforts to pursuade Congress
increase,
housing
shift
sorely needed operating
authorities,
(PHA's),
were
HUD programs continued to emphasize new
construction, and most PHA's,
with
occassional
Without
including Boston,
modernization
assistance.
the ongoing physical upkeep of
neighborhood
relations
limped along
grew
projects,
BHA
strained.
Some
family
developments housed a majority of the neighborhood populace,
and
had
a
large
impact
upon
local
business and
residential
property values.
The
seventies were a time when
population
elderly
were
groups
were
distress
early
had
heavily
years,
began
to
voters--the
registered,
while many
low
When
income
physical
clout that in
the results were poisonous.
The
health went
and BHA's
rapidly
downhill
crime ridden,
BHA's
Authority's
unwjeIIco(med
i.
neigqhbr
unfold.
t: si tr
manament
**..
...........
...
..
....
....
..
....
.
it
wo
lt.u1.
I
rf:rmu
-
.!an::iolnt
a l most
the
Authority
court
residents
management
receivership,
hoped
to begin
program,
the Authority's
to
f
be
of
:BHA's
forced
strategies.
public
fiscal
and
housing
to
the
stock:
revamp
its
Through the powers
housing
the process of
renew
uEtd
Su+ f er i ng
human
a quarter
would
...r ..
...
c......
ty
-I
administrative and operating
revitalize
non-voters.
with less political
UltimatelV,
p::i:
of
tenant
registered
as a blighting,
B~ HA 1-7
t t e m-
before
Authority's
of
100%
combined
image
levels
virtually
socio-economic
wide
uneven
the
its social
officials
rebuilding
fabric
infrastructure.
and
BHA's
and
to
At
the center of this effort is the Housing
Manager.
According to BHA's Chief of Operations,
"the manager...becomes the key person, the focal point
around
which
the
Authority... delivers
its services
and
fulfills its mandate. That tells you a whole lot... about how
the organization ought to be structured.. if the manager
is
the focal point, then ... the manager ought to be responsible
for,
and
have a staff to carry out all of the day to
day
work that has to be done... Our task at the BHA,
has been to
take a management system,
which was basically incapable of
delivering its services and make it capable of deliver(y)."
It
as
is, perhaps, the efforts of the manager, that will
the
fundamental
successfully
test
of
whether
the
restore its buildings and
receivership is,
a small
serve
Authority
can
Court
communities.
incubated period of time, in which
those challenges can be assessed.
This
once
receivership,
its
powerful
the
Housing
management
and
entity,
has begun the slow process of
crumbling management
is
housing
foundation.
Manager
whose
system has been the gamut:
that was often
ill
informed
reconstructing
At the helm of the ship
role
decision-maker to a relatively
through
within
the
field
from respected leader
powerless office
about the day to day
manager
operations
of the his or her local development.
What
provided,
public
be it private,
tenant or
could successfully begin to breath new life
housing;
development
court
management model,
especially
projects?
What
their
most
distressed
were the opportunities
BHA
into
family
which
receivership could generate that would serve the long
and difficult
process of providing decent,
to the city's
poor and moderate income peoples'?
low rent housing
CHAPTER I
BHA's
Role in Boston's Housing Market
Local
Benefits:
From
the
time
to
legislation
importance
of
increasingly
the city
low
rent,
returning
assistance
scale"
enabling
Authority,
housing,
housing,
would
become
fathers.
Newly
formed
which was one of
that
the
reached
"down
the
the
few
the
income
to
public
(2)
businesses
housing
communities for
Because
early
rent
passed
veterans and their families and
programs
effectively.
Local
decent
to the city
elderly turned to public
shelter
Boston
charter the Boston Housing
apparent
households,
of
public
housing
and
industries
potential
customers
housing
should offer
looked
and
employees.
advocates believed
employment
as
well
that
as
low
housing
assistance to eligible families, public housing
developments
were
lands,
typically
built,
on
locally thriving centers of
The
city's
Dorchester,
large
Avenue
Boston
corridor,
locations
Faneuil
Cathedral,
medical
areas
and commerical
appealing
Park:,
South
such
and
Bromley
as
in
sectors,
family
Fidelis
Heath
and educational
in
and East Boston,
(Dudley
and
neighborhoods.
Station,
etc.).,
projects
Way.
Charlestown,
for example, had
their
Allston-Brighton
for
near
employment.
family projects constructed
Industrial
Hill
dock
inexpensive public
Other
such
institutions.
became
as
sites
the Missions were
Blue
Orchard
such
located
as
near
Local
neighborhoods
construction,
the
assist
Prominent
friends
expansion.
were
the
The
from
accompanied
Authority's
development
locally controlled in order to more
process
of
business
of
jobs
management and maintenance which
Authority's
activities
were glad to see the
city
stimulating
and labor
and
state
leaders,
the
local
local
politicians,
fully
economy.
realtors
set
and
policy
Governing Board members appointed to five year terms by
as
the
mayor or governor, (1 seat).
With the combination of
local
and
federal construction monies and
policy makers who understood their community's
priorities,
agency
it
seemed
that Boston's
public
would mal.k:e a significant contribution to the
needs
housing
city's
economic growth.
Local
Problems Shaping the Authority:
Local
decade
the
communities,
of
course,
could not predict the
of economic decline which would grip the
1950's and 60's.
region
in
Due to rising energy and labor costs,
an exodus of major employers such as the steel,
textiles
and
shoe industries began. Other industries such as shipping and
light manufacturing firms were impacted as well.
As a city,
Boston serves as a center of
the statewide economy began to shift,
collar
jobs.
earners,
job
City residents,
were hit
opportunities
overcome
commerce. When
Boston lost many blue
including public housing wage
hard by the steady decline in blue collar
and entire
neighborhoods
the effects of unemployment,
10
struggled
business losses
to
and
the slow down of private investment activites.
It
seemed at the same time that the employment sector
was undergoing periodical
housing
shocks and upheavals,
the
market was also beginning to feel the strain of
geographical
production
Boston's
limits.
could
rigid
housing
Land prices were rising
not
keep
racial
pace with
and
ethnic
problems even more,
By
family
1954,
the
and
many citizens
from
in certain city areas.
almost 99% of the Authority's
existing
units had been built and as BHA entered the sixties,
city's
overall
market rents,
in
families
rental
needs.
compounded
its family housing production came to a virtual
poor
vacancy rate was on
general
could
housing.
more afford,
the
decline
no longer afford to live
Many large families,
and
in
Many
private
could not find,
less
adequate housing.
lik.::e most poor communities were
vulnerable
to the changing economic and
Politicans
were the first to begin to react to
changing
standstill.
began to take a steep climb.
BHA housing projects,
employment
political
market calling for new and
climate.
the
city's
innovative
economic strategies to alleviate the growing hardship
local
its
housing
city's
prejudices
preventing
living, and sometimes working,
The
city's
which
businesses and service groups were facing.
Urban
renewal
comprehensive
implement
was
crafted
by
legislators
as
means for the nation's cities to prepare
broad
based
economic
revitalization
a
and
efforts.
Boston was one of the nation's earliest applicants for urban
.1
renewal
dollars
projects
and
served
many
of
their
national
as
early
models
redevelopment
of
public-private
initiatives.
City fathers made
from
the
that
hard choices about who would benefit
resources of urban renewal
very
few
Unfortunatel y,
poor
the
and history has
communities
city's
were
shown
beneficiaries.
public housing agency would
only
be
would
also become one of its
excluded from the city's
By the late sixties,
new
foremost
found
not
progress,
it
victims.
next to HUD operated,
foreclosed
properties, BHA was perhaps the city's biggest landlord.
Its
founding mandate,
low rent housing,
was
to serve as housing of
the
to provide decent,
being stretched by a new mandate:
last resort.
Thousands of
existing units had been demolished
to make way for new government,
Some
subsidized
buildings,
where
but
near
housing
office
was built
the number
and commercial
in
place of
of newly built
torn
houses,
the numbers of homes which were
uses.
down
came
destroyed
no
and
never replaced.
The
Authority
was
manipulation and abuse.
by
came
already
seeking
way of political
for
political
jobs with the Authority typically
connections and
a
career advancement by way of political
supplanted
performance
appraisals.
inappropriate interference in
BHA
haven
Tenant selection was already shaped
patronage and racism;
by
a
Board members and like
There
tradition
of
sponsorship,
was
gross.
BHA's day to day operations by
any
"extended"
12
city
department,
BHA
officials
could not ignore the demands of
According to Ed Logue,
renewal
integral
program,
component of
obvious
decline
developments,
the
how
literally,
viewed the BHA
its relocation program.
as
Despite
the physical conditions
of
capacity of
the Authority.
many
"All
commented Logue at a forum held at MIT in
many
forward
the architects of the city's
the
BHA
we
cared
1983,
"was
units we could get to move our development
and relocate those people."
Ironically,
city rebuilt its downtown districts,
destruction
an
Boston's urban renewal efforts did not add to
operational
about".,
in
mayor.
the then director of the Boston
Redevelopment Authority, (BRA),
urban
the
that would
plans
while
the
it stoked the fires of
ultimately claim its
public
housing
agency.
Housing Reformers Begin Work to Save the Authority:
When it became apparent that the BHA was entering into
an unprecedented period of operational
centralized,
top
down,
decline, calls came for
reforms in the delivery
of
BHA's
housing services. Management consultants, housing groups and
advocates joined with residents of public housing to protest
its
deplorable
conditions and city
Neighborhood
services
had
had
taken
and employment sectors.
milked
tremendous
delcine
the Authority of
social
its
toll
Urban renewal
its
controversy
neglect.
available
in
its
on
relocation
units
wake.
not even shared a common neighborhood
leaving
Long
residents of public housing resented the newcomers;
had
area
history.
time
most who
These
newcomers
issues;
were different,
their
local
presence in BHA units was not due to
or political ties,
in,
perhaps less caring about
family
but because the house they used to
live
had been torn down.
In contrast,
between
homes
the hopes and promises of returning to their former
and
Instead
being
of
projects,
were
hundreds of new families felt stranded in
public
housing
getting better housing due the
now
in
"temporary"
some families were living
deplorable condition.
residents.
city's
renewal
in apartments that
There was little
sense
of
welcome as the buildings and grounds became springboards for
vandals
and
polarized
theives.
by
racial
Some
BHA
sites
tensions between
had
also
minority
become
and
white
households.
Various government
office
Community
of
inefficiency
few,
if
there
identify
Development
and poor fiscal
any,
critics
problems. In fact,
has
agencies such as HUD and the state's
had
chided the
for
management practices but
solid
solutions
for
its
very
BHAs's
only with the declaration of receivership
been a thorough and systematic
and
BHA
then address the major
effort
operational
to
both
problems
which shaped the Authority.
As
subsequent
a background for framing the management issues and
operating
Receivership,
a
strategies
general
implemented
history of the BHA's
decline follows.
:14
during
the
operational
CHAPTER II
BHA's Operational Decline
Rising Costs and Declining
Income(s):
Coincidently, just as many family developments began to
suffer from deterioration and a lack of modernization,
families
whose
incomes
were rising
status improved began to move out of
newcomers
that
their
employment
public housing and many
were families who lived on fixed incomes.
During
most public housing authorities had only
time,
annual
as
Many
their
income from which to pay for routine operating
rental
expenses.
In
the
congressional
that
late
sixties,
(1969,
to
For the first time in the history
of
income families.
the
nation's public housing program,
the
with aging physical
and unprecedented
crisis
income
for
countless
plants,
inflation,
public
other
housing
larger
the
into an administrative and financial
23%, representing
of
its
larger
Charlestown,
The
authorities.
BHA's
effect
overall
housing authorities,
By the mid seventies,
at
a
a national energy
the initial
amendment was to limit
Brooke
rents were set
income.
25% of household
Coupled
a
had to be affordable
low
of
1971),
mandate, called the Brooke amendment, affirmed
the nation's public housing,
maximum
1970,
of
operating
BHA,
fell
like
further
disorder.
vacancy rate would rise to
nearly 5,000 uninhabitable units. (3) Many
developments,
Orchard Park::,
such
as
Columbia
West Broadway and others,
15
Point,
began
to suffer from the effects of complete social,
political
disarray.
BHA's
net
nearly
that
annual
$14
income
per unit,
Ironically,
level,
that,
The
the average
indirect
loss
rents
to
potentially,
operating
affort higher
market rent
income
its
active
conditions.
declined.
income
rents,
they
to a private landlord and
private
sector).
vacancies,
and
the
households,
Between
the
limited
of
departure
the
Authority's
resident
was
for
Clout:
Boston's
public
dependence on federal
its
support
at a time when,
powers
dilemma
dual
operating
political
over
income declined.
One central
and
public
in
steadily
Public Housing's Declining Electoral
has been
specified
the Authority's household
the Brooke amendment
higher
policy
to move away,
BHA families
of
in rents due to the rise in
due
BHA
eligible to remain
BHA doesn't compete with the
the
of
expenditure during
seventies,
households had
consequence of
(thus paying
1980,
a deficit
incomes rose above a
just a families could
moved on,
The
mid
longer
income
and
and
was $25.97.(5)
as household
was no
1971
from $1,563,000 to
the
As over-income
limits was
the
until
the renter
housing.
time,
went
million.(4) The median capital
same period,
required
Between the period of
physical
units
and
and local
on
leaders were forced to
more than
needed
ever,
to revive
dollars
local
services.
housing
for
building
government
Needless to
for
say,
many
leave public housing
the assistance of
the
program
BHA's
ailing
the
city's
community
Without that
families had
mayor
with
provide
over
BHA's
of
time,
actually
the gap between
sources
which veterans and their
family developments with
housing developments
widened,
votes",
his public and private sector resources,
Gradually
As
of
used to influence Boston's city government, the
BHA
support.
"block:
any
city
notable
services
public
to
public
declined.
service costs and operating
developments
affordable
went
housing
from
being
income
important
throughout
neighborhoods, to being characterized as
for
did not
Boston's
"breeding grounds"
problems affecting area businesses and homes.(6)
Residents Petition Courts to
In
began
1970,
to
epidemic
initiated
legal
proportions,
Broadway,
was
in
(D Street),
substantial
sanitary
code,
dismissed
because,
effective,
residents
public
of
housing
In
c111,
section
according to
less
the
year,
that
of
the
their
poor
residents of
the
suit, charging that BHA
Commonwealth's
127H).
The
state
case
the ruling statement,
heroic, procedures are
was
"more
available" to
BHA to rememdy code violations in
the
city's
developments. (7)
1974,
Authority,
Again,
albeit
filed a
violation of
(MGL
residents
actions to demand
housing conditions be addressed. That
West
Services:
when the effects of BHA's city-wide decline
reach
Authoritv
Improve Housing
this
residents
time in
again
brought suit
the United
the complaint was dismissed.
against
States District
The federal
the
Court.
judge ruled
that
the
federal
jurisdictional
"in
court
system
forum, asserting
the
last
was
not
the
appropriate
that,
analysis,
long
range
answers... (are)
best..
.provided
by
the
political
branches
of
government
(that)
have the resources,
the duty and the power to
make
significant changes in the field
of (local)
housing."
(8)
Residents
were
established
by
resolve BHA's
In
and
lead
the
state
rampant
early
tenants*,
informed
Boston's
legislation,
Housing
was better
Court,
was
suited
to
housing code violations.
1975,
filed
that
Perez
Armando
a class action
nearly five years later,
and
eight
suit against the
this
other
BHA
Authority,
class action suit
would
the way for the the Boston Housing Authority to become
first,
and only, public housing
to ever be placed
into court
authority in
receivership.
The
representatives
tenants joining originally with
were:
Maria Laboy, Alejandrina
Wellings,
Margaret
Linda
Ferdinand
Pauline
Morgan
Tenant's
Policy
Gerkin,
the nation
Grace O'Leary,
Perez
as
class
Montes, Mary
Ruby Perkings,
and Delores Culbreath.
Two other
tenants,
and Rita Driscoll
joined
later.
Boston's
Council
Inc.,
was also
admitted
as
an
intervening party plaintiff.
CHAPTER
III
Manqggment Reforms
Centralized
Court
Predating
Maintenance
Interventions
Reforms:
During the early history of the Authority,
management
system
directive
had
not readily
their
own
various
combined,
management
In
other
local
often
inefficient
In
practices,
development
compounded
to
In
years
practices.
Authority's
providing
its
when
already
and
maintenance
(BHA3
character,
contrast to
operators
Struggle
the Master's
local
set
functioned like
instance,
patronage
often influenced
central
information
office
prepared only a
were
on routine local
e>xpenditures for
the
described
management
local
discriminated
insufficient,
labor
years.,
the
policy,
staff
and
against,
decisions
or
activities such as
supplies,
as
Minority families,
tenant selection
got
its
report
local
blatantly
the
Survival: 1969-
kings of tiny fiefdoms.
were
of
for
managers
who
report
severely criticized
selected tenants, hired and supervised their
Over
sometimes
management
a resident sponsored evaluation
later,
uncontrolled
BHA's
in
services.
decentralized
for
office
which
the
Authority's operating performance,
few
strong
management practices and styles,
approach
197.,
1973)..
a
many respects, each development
and
policies
with
conflicted
These
accomodated
or supportive role from BHA's central
field management affairs.
had
BHAs field
and
outdated
vacancies,
costs etc.
Authority's
excessively
decentralized managerial
unclear lines
approach had created inadequate and
of authority,
inconsistencies
strategies.
in
a lack of budgetary planning and
the Authority's
preventive
maintenance
of which contributed to accelerating
All,
the
wear of a deteriorating plant.(9)
In response to critics who pointed to examples of waste
and
inefficiency in BHA's management system,
Authority
had
decentralized
begun
the
management
process
of
structure
in
1972,
the
modifying
into
a
its
centralized
maintenance system. Centralization was viewed as a means for
curtailing
mechanism
the
for
powers
of
instituting
the
local
cost
manager
saving
and
as
a
controls
and
to
programs seemed
not
to
coordinate labor pools.
At
suffer
services.
transition
quickly
first,
from
One
local
the
central
consultant
period,
begun
management
coordination
to
the
of
Authority
maintenance
during
the
describes how centralized maintenance had
to improve BHA's maintenance and
management
capacity.
"Formerly,
the managers of the 55 projects supervised
their
own
work
forces.
Then
these
work
forces
were
consolidated
into a
city-wide decentralized
maintenance
department.
Now
the managers have increased influence over
maintenance through district crews.
Major jobs, such as the
replastering
of
a whole room,... (are) handled
by
central
mai ntenance.
'This makes coordination quite important"...Because of
the
improvement in
internal
communications,
(centralized
maintenance)
is proving to be...
highly cost
effective."
(10)
According
to
the recommendations
of
BHA's
management
consultants, centralized maintenance operations meant
work
orders would be centrally processed,
be
centrally
dispatched
and
the
that
work crews would
accounting
and
data
processing system for the Authority's field operations would
be centralized.
of
Managers in turn would devote the
majority
their time to resident oriented functions such as lease
enforcement and office staff supervision.
The
tenant
selection department had
downtown function,
their local
material
purchasing
former
tenant
delivery sytem,
officials
services
services
such as public
department
of
manpower
decisions
and
other downtown
field
maintenance
coordinating role" of
budget decisions,
to
make
the
day
the
would
quality of
there
be
like
these
BHA
resources
to
day
functions more efficient.
management
a lack
procedures for the allocation of
Problems
BHA's
centralized maintenance model was a mechanism
improving
longer
were
and
and
management.
saw the "downtown
coordination of personnel
The
safety
using a centralized
as a way to make local
and
a
Budget management and
became more centrally adminstered
Authority functions related to field
Proponents
been
although managers had learned to control
tenant selection process.
authority-wide
always
would
of
decision-ma::ing.
uniform
local
for
policies
maintenance
be curtailed
in
a
No
and
service.
centrally
orchestrated work order system with dispatched
labor crews.
The
Role of the Housing Manager
System:
Maintenance
One
outcome
of
BHA's
in
efforts
21
a Central
to
centralize
i ts
maintenance program was the gradual
of
the
overall
the
Housing Manager.
change in
While still
the
responsible
conditions of the local development,
Housing
Manager,
maintenance
staff
no
longer included
supervision,
functions
making
for
the
the duties of
tasks
local
such
as
budget
or
planning decisions.
According
recommending
to
the
original
that
the
Authority
maintenance and management controls,
Report,
not
1970),
buildings".
centrally
consultant
report
institute
central
(the Stone and Webster
the manager's job was to,
The
focus
of the
"manage tenants,
manager's
role
in
administered maintenance program hinges upon
a
the
concept that,
"the manager needs very badly to be on the same side as
tenants... (when) problems arise in
maintenance,
as
they
will... it
is best.. .if both s/he and the
tenants
"fight"
maintenance (together).
(Thus),
the concept of centralized
maintenance
implies a view of the role of a project manager
as
(being)
responsible to and allied
with the
tenants
in
demanding (the) effective delivery of services to residents
of public housing." (11)
It
was assumed that as the capacity of maintenance services
improved,
project
productivity",
managers
meaning
would,
"respond
with
increased rent collection,
lease enforcement and the added pursuit of
improvements for their local
equal
improved
socially oriented
development.
The Authority's Maintenance System Continues to Decline:
By
the
time that the Perez suit called
BHA's declining physical
improvements
of
attention
to
and social conditions, the expected
centralized
management
and
maintenance
reforms
had not materialized.
example,
staff
had
Work order
decreased for a time;
coordination
turnaround,
for
then when supplies and
could not keep
pace,
the
work
order
system again broke down from inefficiency.
Although
public
the
1972
study conducted by
housing advocates,
19:9-1973),
had
argued
threshold
of
managment
capacity,
(A
Struggle
that
the
for
residents
and
Survival.
BL
Authority
was
on
making significant improvements in its
it also reported that deep
the
local
structural
changes were necessary to fully restore BHA operations.
Below
the
Authority's
administrative
level,
for
example, the combination of tenure, union representation and
the
practice
decisions,
had
of
political
created
a
sponsorship
workforce of
in
500
employment
blue
collar
workers and 230 white collar workers who, for the most part,
had no clear sense of what their job responsibilities
There
was
no
formal,
discernable Authority-wide
policy of
promote
structure
and evaluating job performance and there
assessing
informal
administrative
were.
personnel
policy.
(12)
BHA to hire from within the
was
It
for
no
was an
agency,
to
existing employees to higher positions and whenever
possible,
to
offer
minorities--subject
employment positions
to
accepted
to
practices
tenants
of
and
poliical
brokering and union membership.
By
the late
the Aut h ority,
in i.cn,
the. Lb
si x ties,
four
unions had
name ly t1h..Teamters,
e
Indusri
al
Ui
been rec.ogni
the Building
on
andIl a.
d by
r!T.
u..(nio
f or
.H...
...
n
-rI.. m ---.l
,
tI
selection
for rating
criteria
S:::l icant did not relate to the requirements
position
because according to
was
important. (13)
more
Each
successive
the
governing
For
provide
weekends,
utter
work-force
a
long
and a
tenant
organization set
during
evening
with emergency
and
heralded
management
order
in
fact,
in
its union
compelling
up
weekend
maintenance
when,
the
Webster
In
Housing
ups,
hours,
as
important
that
quality
to
work.
proved
to
recommended
focusing
the Authority
did
evenings
agreement.
the
to assist BHA
could help
Over
be
time,
utterly
steps
and
Out of
city-wide
hotline,
residents
in
reforms
had,
the
Authority's
its
capacity to
restore
In the
short run,
however,
chaotic ...
outlined by
the
the
centralized
particularly
Stone
and
the responsibilities and authority of
the
income certification,
of
job
need,
changes
implemented.
Manager to mostly tenant
were
more
and
and management
report were never fully
managers
and
an emergency work order
maintenance
structure
seemed
more
service on
provide responsive housing services.
model
agreements
maintenance problems.
Centralized
been
time,
to the terms
frustration
placed
the job
membership
jurisdictions
emergency work
due
union
bargaining
crafts
on
classifications.
not
collective
Authority's
restrictions
the report,
for
seldom
work order
able
related
activities,
(lease
record keeping, evictions etc.),
to
performance
significantly
and
eventually,
affect
the
even
the
number
Their
of work orders completed
credibility
Manager's
amongst residents
leadership
Instead of
capacity
increasing
upgrade local management
local
development
between
BHA's
communication
powerful,
suffered
was impacted
services,
central
and field
system
between
local
control.
and the Housing
as well.
adversarial
employees.
the
The image of
BHA manager.
ar
to
centralized control
manager replaced
independent
their
the opportunities of managers
decisions created
operations suffered.
uninformed
were out of
field
an isolated
the former
over
feelings
The
internal
and
central
and typically
image of
the
CHAPTER
III
sedhting
Court
Prior
Garrity.,
through
the
declaration of
court
receivership,
had attempted to restore BHA's operating
other
appointment
legal
of
organizational
The
Egcgiverghig
\'eir
measures.
a
expert
The first
Master,
who
and court
monitor
was
would
second intervening strategy was to
capacity
through
serve
to
Judge
the
as
an
Authority.
the
implement a
Consent
Decree agreement.
Creating
a Master's Office to the Authority:
When Garrity
initially agreed to rule on the
case,
he
wrote,
"as
indicated by the evidence in this
great
the
by
BHA
majority
as
of
well
...
the
case,...probably
units... owned
and operated
as the buildings themselves
are
not
decent,
nor are
they safe... nor are they in compliance
with the State
Sanitary code... that
physical conditions
existing
in some, perhaps many apartments are so intolerable
that
relocation
is
immediately
required,
that... (vacant)
apartments.. .constitute
a
present
danger of fire and disease... that serious crime and the fear
of
(it)
makes
(BHA)
developments
intolerably
unsafe... (and)
the
facts...
indicate
that
occupancy
by
race in
BHA developments
and leased housing
reinforces
and exacerbates segregated
housing patterns in
Boston's
neighborhoods."
(14)
There
a
landlord
money
was no doubt
but
and
it
about the Authority's
was also true
expertise
to
that
remedy
BHA
liability
had
its
as
insufficient
ever
worsening
deterioraton.
So,
plans
as a start,
Judge Garrity
and recommendations
concern".
Those
apartments.,
unfit
tasks
in
ordered
operational
included
occupied apartments,
BHA to
areas
of
prepare
"immediate
identifying
planning for
vacant
major
grounds clean-up efforts,
racial
and
vandal ism,
and addressing
desegregation
within
Authority's
crime
housing
communities.
The judge believed that BHA needed,
and appointed a Master to fulfill
function.
The
most
important
"expert assistance"
a technical and monitoring
task of
the Master
was
to
prepare interim and long range plans for the maintenance and
rehabilitation
of BHA's substandard properties.(15) BHA
also
to fully
ordered
cooperate with the
Master.,so that these goals could be met.
and
competent
Board,
court
appointed
Without the willing
leadership on the part of BHA's five
Judge Garrity
was
.::new that the Master's efforts
member
would be
fruitless.
The Master's Findings:
Fourteen
months later,
on July 1,
1976,
the
Master
volume report which was accepted by the
Judge.
(Having retired from the Housing Court in October of
1975 to
filed
a five
accept an appointment to the Massachusetts Supreme Court, it
was
agreed that the Perez case would follow Garrity to
new
job.)
The Master's report
edge of bankruptcy",
into line
Due
its
with its
to
because it
policies
decisions
which,
had failed
"BHA
was on
the
to bring expenses
income and subsidies.
BHA's failture
Security Department,
deficiencies.
found that,
his
The
to monitor the activities
of
public safety services had serious
Authority
was
criticized
for
Board
"prohibited managers from participating in
affecting
their
developments"
and
that
BHA's
maintenance operations was an,
The
Authority's modernization efforts
inefficient"
capital
upon
"impenetrable morass".
resulting in
major,
unjustifiable
"grossly
delays
in
improvements and development planning unduly focused
new construction at the expense of renovating existing
The
develop'ments.
participation
maintenance
by,
in
Master
the
and
Community Affairs,
According
HUD
and
of
the
BHA
poor
and
(DCA)."
to
administration
the
Master's
p olitical
nepotism"
and that these practices had
Board
promotions,
divided
the
loyalties
between
obligation
to
clearly stated
In
inability
an
implement and
and
employee's
the
to
aut h ority
the
the
the
operating
officials
and
of
internal
"tradition
of
sponsorship
and
a,
adversely
impacted
employees.
Because
Authority's
hiring
to
and
wor kforce was
sponsor
if
and
there
one's
was
a
f irst place.
concluded
that
prob lems were ca used
stated
performance
of
the
the
major
by
the
"communicate,
capably,
poli cy decisions
BHA officials,
dismal
the
over
poli t ical
Master
administer major
within the agency".
contributing
of
job function in
BHA
of
had
BHA
perform those job d L ties,
short,
administrative
performed by
members
hampered
Department
report,
persons on the basis of
work
of
(16)
employing
Governing
allocation
state's
upon
of
resident
administration
was based
quality
that
found
administration
information,
BHA,
by
also
modernization funds was severely
"inadequate
management
the
were,
and programs
Master,
city's
were
housing
agency
because
they
of
the
seriousness
information",
failed
"see
to,
deficiences
in
the institution.
within
the
the
traffic
get the job done."
Garrity
the
in
its
"some BHA employees to
a Consent
Master's first
concluded
receivership"
authority
(17)
The Court Moves to Implement
When
of
One result was that
BHA officals were unable to direct or to delegate
or to even determine the capacity of,
and
extent
that
report
another
Decree:
was
reviewed,
strategy,
Judge
"short
of
was necessary to propel the Authority forward
operating capacity.
So,
Judge Garrity reappointed the
Master with stronger powers over the hiring and promotion of
top echelon BHA personnel
BHA's operational
The
and ordered
the Master to
reorganization.
judge was particularly concerned with
the divisive,
oversee
controlling
counterproductive and scandalous influence of
BHA Board members over BHA's day to day operations.
that effort,
Towards
the Judge personally sat down with BHA
for
attorneys
staff,
residents and the Master and
the plaintiffs,
drew up a Consent Decree--a document which took over a
year
to complete.
With
legally
the enhanced authority of the court Master
binding,
statement of goals,
the bargaining table
obligations
Consent
to
to establish their
remedy BHA's
a
tasks and objectives,
Garrity hoped to bring the Authority and its
to
and
substandard
Decree became the blueprint for the
Governing Board
administrative
conditions.
The
administrative
reorganization
its
required for BHA to improve the delivery
of
services.
The Consent Decree:
At
the
the forefront of the Consent Decree provisions
desire
competently
to
restore
perform all
the
of
Authority's
was
capacity
to
its operational functions and to
enable BHA to conduct substantive financial planning.(18)
The
years.,
June
Consent Decree was to remain effective
starting
1930,
from June
unless
any
1,
1977 when it
for
three
was signed,
party could demonstrate
that
until
the
Decree's,
"further
functioning.. .will... be
so
unworkable
that... (the purposes of the Decree provisions) will not (be)
substantially achieved."
(19)
Unfortunately,
the
almost nine months would pass, after signing
Decree agreement,
hired an Administrator,
before the Governing Board
(March 1978).
actually
Until his employment.
there was no chief administrator charged with directing
efforts
of the Authority to fulfill
BHA's provisions
the
under
the Decree.
Barely six months later,
on October 13,
1978, the new
Administrator, without prior notice, resigned,
immediately),
and
the
potential
success of
( effectively
the
Consent
Decree began to rapidly decline. (20) Within weeks after
resignation
of
Master
attorneys
notices
and
of
Board members,
the newly appointed Administrator,
"Subtantial
for failing
for the
plaintiffs
Non-Compliance"
began
the
both the
to
with BHA staff
file
and
to meet the specfic requirements
of the Consent Decree.
Vacating the Consent Decree:
BHA provisions during the first eighteen months of
Decree
included at least
the
154 requirements in thirteen depar
tments. The departments referred to in the Decree provisions
were central
administration,
purchasing, central
data processing,
modernization, security, tenant selection,
weeks
Administer,
began
department.(21)
after
both
to
planning,
project stores, management, maintenance,
evictions and the legal
Within
personnel, financial
the
resignation
of
the
BHA's
the plaintiff's attorneys and the
Master
file letters of
complaint charging the
Authority
and its Board with failing to comply with the provisions
the Consent Decree which were in effect.
were
Over fifty letters
sent from the Perez attorneys and the Master
at least twenty-six notices of
substantial
submitted
non-compliance to
BHA's Commissioners.(22) Both the Master and the
requested
of
plaintiffs
that the Judge convene a hearing to review
their
testimony and petition to vacate the Consent Decree.
Thirty-five
contended
days
that
opportunity
to
its
of
had
hearings
used the
followed.
Consent
bring about administrative
The
Decree
and
Board
as
an
management
changes which,
"can
and
Boston."
In
and will lead to a restoration (of) decent,
safe
sanitary conditions in public
housing
throughout
(23)
disagreement,
Decree
did
not
the
plaintiffs argued that the
provide the structure
for
Consent
resolving
the
Authority's larger,
more pressing problems of deterioration
and
poorly administered operations.
the
BHA's inability
To effectively
to reform itself,
remedy
the Perez plaintiffs
petitioned for the appointment of a Receiver/Administrator.
From June 1,
1977 until
petitioned the court
had
Decree,
document
begin
been
to place BHA
in
effect.
in
receivership,
This
had been prepared as a working
the process of
with
June 1980, when the plaintiffs
the
State
Sanitation Code.
Consent
legal
guideline for
BHA to
Decree was vacated
into
compliance
the
Authority's
the Decree
Provisions,
Due to
inability to signifciantly adhere to
the
comprehensive
its housing
bringing
a Consent
and BHA was placed
in
court
receivership.
The Accomplishments of
the Consent
BHA officials contended
were
actually
during
completed,
the
provisions,
to
provisions
security
closer
the
poorly
during
Apparently,
spelled
provision
month
the
in
which
deadline.
the
first
half
of
Decree
remained
138 provisions
required,
total
those
incomplete
remaining
other
critics
leg
of
those
had
uncompleted
incomplete
pointed
the
out
BHA
least
by the
one
first
that,
had
Consent
departmental
at
17% were
BHA departments.
claims of the Governing Board,
nearly
out
the
of
the
amongst
examination,
despite
of
maintenance provisions,
while
were spread out
Upon
of
90.
However,
26% related to
related
that a total
or
period.(24)
Decree:
done
Decree.
improvements
outstanding
eighteen
During
the
hearing,
residents testified
services such as heat and hot water,
maintenance,
had not
that
number
hired,
that
promotions
The
In its defense, the Governing Board cited
new
and
personnel
procedures
of
Occupancy
had
the period of
During
developments along with their
divisions
focus
outlined
with
been
in
hiring
and
adopted.
reorganized
and
a
of the field management
BHA's 27 family
the Decree,
38 elderly sites were put into
District
Director
activities remained centralized,
of
been
according to the Board, was
the extensive reorganization,again,
the
for
had
tenant selection and transfers.
Their biggest achievement,
Maintenance
individuals
affirmative action goals had been
included a new plan for
seven
electricity, emergency
of highly qualified
Department
program.
basic
public safety and extermination services still
improved.
a
that
the reorganization effort
the Board's assertions that
for
each.
however,
was
it
not
clearly
could
deliver its routine or emergency housing services.
and
better
in BHA's
statement of defense.
During
BHA
the
Consent Decree's first
reporting
period,
had also rewrote its standard lease with its residents,
in conjunction with the Tenant's Policy Council,
(TPC),
had attracted $37.45 to $41.45 million in funds during
fiscal
period
for
physical
and
management
and
that
improvements
earmarked for family develoments. (25)
The
that,
evidence presented during the proceedings
in
many respects,
the Governing Board
had
sg.tgest
little
direct
participation
in efforts to ensure that BHA
achieve
any
progress under the egess of the Consent Decree.
the
court proceedings to determine the merits
the Decree, the judge had interviewed several
of
During
vacating
board members.
In his findings, he describes his disappointment in the lack
of
progress
made during the first eighteen months
of
the
Consent Decree.
In his summary statement, Judge Garrity wrote,
The
Board's
incompetence
and indifference
to
those
obligations,
(of
the
Consent Decree),
has
directly
and
Substantially
contributed not only to
BHA's
failture
to
implement
important
provisions of the Consent
Decree
but
also
to the unprecedented deterioriation of the Authority's
developments
and the widespread violations of the
Sanitary
Code.
Throughout
the four year history of this
case,
the
Board
has shown itself to be capable of nothing
more than
gross
mismanagement.
The unabated mis-and non-feasance
of
the
Board
necessitates
the
extraordinary
action
of
appointing a Receiver in this case. (26)
The
judge
was
finally
convinced that
the
court's
past
approaches to force the Authority to bring its
housing
into
compliance
management,
overall,
The
with the State Sanitary Code and to address
maintenance
crisis
had not only
failed
its
but,
housing conditions in the BHA had gotten worse.
appointment
ever reversing Boston's
of a Receiver was the only
public housing conditions.
hope
for
CHAPTER IV
The Goals of
The
as
Receivershi
goals of Receivership are basically the same goals
those
described
in
the
Consent
imperative
and capacity to achieve
Receiver
mandated
is
1.
halt
2.
to
4.
5.
provide
added
objectives.
The
to:
deterioration,
every housing unit and building
for the betterment of the
and private housing
By
up
to
powers
of
the
Receiver/Administrator
administrative
Agency
implement
operational
delegates any or
the
has
absolute
Receiver
to
all
is
directly
executive with
control
over
and
is unified,
reforms
reports
public
Board,
policies
leadership
Receiver/Administrator
the chief
Governing
decisions,
practices.
city's
climate.
combining the authority of
the
for
with
state code,
to
implement
successful management
programs
based upon local
development needs,
to end racial
discrimination
trends in
public
housing and,
to
renew neighborhood linkage strategies which
3..
turn,
those
the Authority's physical
bring
Decree,
the authority to
consolidated.
to the
the
BHA's
operational
The
judge who,
decision-making powers
fullfill
the
mandates
in
necessary
of
court
receivership.
A
statement
description of
prepared by
the mandates of
the
Authority,
provides
a
court receivership:
"The Boston Housing Authority,
(BHA),
was established
the
for
in
1935 to take advantage of federal aid available
construction of low-rent public housing.
Presently, the BHA
the fourth
largest
housing authority
is
in
the country
with
almost
18,00)
units
in 68 developments across
the
city.
Currently,
of
Boston
approximately 10% of the population of the
is
served
In February
action
litigation,
Consent
Decree,
city
by the Authority.
1980,
after extended tenant-initated class
(the Perez case),
and operation under a
the BHA was ordered into
Receivership
by
Massachusetts Superior Court Judge Paul
G.
Garrity. The BHA
is
presently
run
by a
Receiver/Administrator
under
the
direct
supervision
of
the court.
The
Receivership
will
remain in effect until
the Court concludes that the BHA
taken
actions
any
appropriate
and
to
all
necessary,
bring conditions in all BHA
into
substantial
compliance
with the
Massachusetts State Sanitary Code.
has
desirable
and
housing
provisions
units
of
the
The
top
priority of the BHA under receivership is
to
to
bring
its
units
into
employ
all
means
necessary
Major
renovations
compliance with the State Sanitary Code.
and the rehabilitation of vacant units are the primary means
being directed towards this end. Other goals of Receivership
include:
promoting
strong
desegregation and open
housing
efforts;
stengthening
the
relationship
between
BHA
developments and their surrounding
communities;
developing
and
implementing
management and information systems
which
evaluate and monitor BHA progress;
and ensuring inasmuch as
possible
that
all
BHA
operations
continue
to
maintain
compliance
transition
These
years
of
housing
their
sanitary
applicable laws during and
goals may seem ambitious,
neglect
and
is
but
long term viability.
community
esteem
had
are
In
in
to
fairly
light
authority
fact,
a first
endure.
basic
of
It
is
and neighborhood
the
many
The
many
public
goals
of
fundamental
must
incorporate
of
the renewal
the sustained
linkages,
most far reaching goals for the Authority.
the
and
the provision
step in
after
(27)
isolation which
any good housing
operations.
housing
social
have
however,
which
priorities
BHA's
all
communities
receivership,
into
with
to the post-Receivership period."
safe and
of
growth
that
are
the
in
the
CHAPTER
V
Receivers hip~ Initiatives
Social Conditions
The
central
tasks
during
the first
the
its
which
overall
What
became
management
during that
the Property upon
to
appreciate
features
design
reminded
environments.
to meet
no single
the needs
of
a
congregated
Receivership:
the scope of
characterize
Not only are there
in
garden
BHA's
of the broad range
which
communities.
semi-detached
superblocks to
of
physical
public
Boston's
ten
be
type apartments
property
story,
found,
with
brick
but
private
also
parking
as well..
Property
and
Authority
community
and social
conditions
were
preventive
maintenance
Public
existed.
if
any,
conditions
established
describe management
few,
the
completed
process was that
could be used
and
the
One of
was to determine
apparent
one is
spaces,
receivership
the Authority's housing
conditions,
towers
responsive
program.
state of
order
housing
a
provide
developments.
The State of
In
is through
Receiver/Administrator
months of
strategy
of
majority
successfully
and maintenance
the
six
to
residents
capable management
first
for BHA
means
services to
housing
and
to Ren~ew BHi's Phvsi cal and
found
in
housing
major
three
were so diverse
general
conditions.
categories
capable
sites
code violations,
found
a
history
management
in
to
The best housing
developments where
and
that
this
services
cateQory
the tenant
of
had
population
expressed
satisfaction
with their
management
services
not surprisingly,
many of these projects were recently
or
These
modernized.
almost
exclusively
stable
family
public
elderly complexes.
projects
McCormack
and
category,
although
housing
Gallivan
all
such
as
::)uilt
developments
A
few,
Fairmont,
Boulevard,
and
also
were
large
Mary
fell
but
Ellen
into
of these housing projects
this
were
in
need of some major modernization work.
Overall,
worst
BHA's family developments were by far,
social
and
physical
conditions.
maintenance services were at best,
to a backlog of workorders,
for
major repairs and poor employee
deterioration
was
Management
poor,
Due
in the
if
and
non-existent.
insufficent local
budgets
performance,
physical
so advanced that large numbers of
units
and buildings had serious code violations. Public safety and
city
police services were typically
was
an
increase
in
crime
straightforward indicator of
absent and
and
nearly fifty percent of the
which
vandalism.
in some
Columbia
were
Fidelis Way,
Extension,
required
Point,
suffering
a
Bromley
Franklin Field,
Cathedral
level
and
The
most
sites,
totalled
from
extreme
apartments.
conditions such as vacant buildings, fell
include
result
these deplorable conditions was
the number of vacant units which,
Developments
the
Orchard
Heath,
Park,
Charlestown.
of intervention
into this category
that
complete redevelopment of the property.
West
Broadway,
Mission Main and
These
amounted
projects
to
the
In
the
buildings,
would
short
effect,
of
completely
most distressed
Authority's
family
have to be rebuilt from the ground up,
restore
the
buildings and social
fabric of
For sites like like Cathedral,
Point,
D
Street,
enormous economic
substance
the
demolishing
of
impact
their
widespread
private sector
Park
belief
and
social
would
or
order
be forced
in
order
the
relations
is
unless the
in
their
Columbia
who
had
areas,
the
summed
BHA
up
by
moved
to
communities,
to abandon
the
local
Other developments such as Maverick, Franklin
Colony
and
condition
Orient
but
Heights
were
not
intensity of
social
and
categorized
these
sites
strategies
had
"redevelopment"
were
in
equally
categorized
managerial
as
as
where
implemented
to
and
the
area.
Hill,
Old
deplorable
having
disorder.
places
to
community.
Charlestown,
surrounding
that
projects
the Missions,
upon their
neighborhood
civic
physical
restore
Orchard
the
the
The
same
Authority
"stabilization"
from
there,
efforts would follow.
Setting Priorities:
The
of
top
priority
receivership-
was
of
the BHA
to
bring
over
the first
its
four
developments
years
into
compliance with the Massachusetts State Sanitary Code. Major
renovations and the rehabilitation of
the
primary
these
goals.
liveability
participation
vacant
units have been
methods by which the BHA has tried to
Other
of
goals
local
in
include increasing
developments,
decisions affecting
the safety
strengthening
their
achieve
housing
and
resident
services
and
to
achieve long term
fiscal
stability.
Vacant Unit Control:
within blocks of
Frojects
one another were found to be
in physical and social contrast.
and
plagued
by
vacant
D Street was crime ridden
apartments,
conditions and poor rent collection.
miles
away,
deterioration,
h ad
It
a
a 19
n
vacancy rat
197
to
Al though
19 0
h ad ev i dencea of
vaciancie
thoug h
was
o
-r
9% in
of
Old Colny.
ew
ph7c1
a1
seri ou
frm
a vi ab 1a
nr-mn
than'
less
only a
"
pr
of
it
73.unit,
the r i.
--
overall
vacancy rate
u-p
from
.1%
in
1977,
1979
the average,
2
authority
s.t+fering
while
bui.din.i
substandard
twice
that
in the nation,
of
any
the local
other
for BHA
major
in
housing
vacancy rate in
family
developments represented a broad range which posed a general
problem
in
how to organize the the
during
the initial stages of
rates,
for example,
ranged
receivership.
with
it
the few
considered
relatively
one
of
1,0)16
resources
Local
from 3% to 50%.
property goes back to 1938,
was
Authority's
vacancy
(BHA's
oldest
as-built units,
family
projects
few management problems and a near zero
yet
with
vacancy
rate.. )
Across the city,
securing
and
hundreds of vacant units,
performing
glass,
the Authority had to begin the job of
cleaning out
massive grounds cleaning to
remove
years of junkpiling and abandoned cars.
-4(')
basements
In
broken
cot..tntless
numbers
of
buildings,
conditions were beyond
lacking entry doors,
many
burned
trash
rooftop
passages.
Since
and
debris
1980,
Authority
has
mailboxes and sanitation
in
left
when
common
stablize
BHA embarked
hired
by
upon a broad
the
and
was
declared,
the
but a
up vacant
completed rehabs
program.
which
require extensive renovation while modernization
either
as a redevelopment
of
few
its
buildings, the
based vacancy rehab
Authority
to
stairwells
all
family developments. After boarding
due
area
receivership
to
managed
description,
item or as a capital
Crews
did
not
contracts,
improvements
item, were completed by subcontractors.
While the
successful
halting
units
have largely
(Except
in
occurred
temporarily,
at
least
even today,
past the general
living
unit
stabilization
where
major
number
the
many,
fairly
of
many occupied
improvements.
redevelopment
the unit
be
has
vacated,
least).
had to establish
Of
in
significant
without
to
stabilization
"restore
a minimum managerial
Step
rise
also necessitates that
effort
First
units,
gone
simply moved
BHA
alarming
developments
which
Once
vacancy rehab program has been
the
uninhabitable
vacant,
the
special
order"
presence,
a means for
the
process,
and to
whereby
provide
at
ensuing management
addressing
BHA's
poor
conditions.
Interventions-- Matching Need
the
family
and
in
projects
maior
need
redevelopment,
4i.
with Opportunity:
of
most
immediate
were
built
during
when
the
the
fifties--coming
Pere_
Authority
to barely
suit
was filed.
began the process of
units,
city
wide,
vacant
uninhabitable apartments.
Cathedral
Par.::
number of
in
abutting
family
residences
when
the
of
that
1983,
allocate
its
working
strategy
This
impact the
Because
its
existing
6'2% of
the
their
the
six
effort
the first
months
on
physical
designs and
of
from
single
frames
converted
Inn,
to
of
how
The
to
to
into
bed,
350
its roster
Receiver
of
the
organize
and
describes his
opportunity
with
important
receivership
public
as well
as
need possible.
housing units
neighborhoods,
reflected
receivership,
to best
"balance
months of
area of
the Authority's
spectrum
electoral
wood
being
approach was a way to create
diverse
twenty
Authority added a
resources.
largest
neighborhoods,
in character
rapidly
efforts
as an
momentum during
Bromley
by BHA.)
first
centered
Authori ty
1,872
range of
and
city
nearly
the Pine Street
operated
the
56"
and three decker
are
community residence,
DuLring
ranging
to two
(In
units
vacant
least
the upper
ten different
included in
areas
rowhouses
condominiums.
to
age
Of the severely distressed sites,
least
are
wards,
need".
came to at
of
units being abandoned.
at
properties
housing
units
1979
the number
with respective rates of
Located
brick
in
tallying
Heath Street representing
vacancy range
BHA
When
years
had the lowest vacancy rate of 26.2"/. with
and
as-built
twenty
social
were
included
conditions
located
a
range
which
in
a
of
went
from decent
to
try
to distressed
descriptions,
and formulate
a singular,
Needless to say,
it was
it
was
insufficient
comprehensive
restoration
strategy.
out
staff
during
the process of
intervention strategies.
was that
however,
order
properly
in
in the overall
for
believed
of
consensus,
methods
In
on-site
management
organized
to
services.
delivery
decisions affecting the
the Area Director,
his
management
responsibility
for
Manager,
the
of
housing
had to
ongoing
the final
field management
staff
decentrally
to
services,
be complemented
Although
a senior
ability
all
by
person of
guide
local
centrally
authority over
process rests
deciding how services needed
Decentralized
be
and
Housing
the manag4er's
BHA resources.
According
The
responsibility
to facilitate
process for
local
to
development.
functions
become
Receiver/Administrator
the most
their
order
the
services
those who bear the most
those
bears
operations of
would
development
the on-site management
be shaped by
ultimately,
the
and
management
general
that decisions affecting
providing
the
central
developing
The one area of
administered,
should
of
BHA's housing conditions.
In
staff
try and figure
management and maintenance reforms had to
a centerpiece
improve
The
task to
how to appropriately balance the input
field
be
a major
with
BHA
Operations,
to
be provided
organized.
Management
Model:
to the Receiver/Administrator,
1
.I
:
the
concept
of
managerial
and maintenance decentralization
responsibility
at
the
local
Receiver/Administrator's,
Court,
focuses
development
First
level.
Semi-Annual
broad
In
the
Rejgort to
the
he writes,
we (are) to get satisfactory delivery of
services
property
maintenance,
the
Housing
Manager('s)
"If
and
responsibilities
...
(becomes)
the common
denominator for
all
service
delivery...The
restoration
of
managerial
authority... (therefore)
is
a
principle
of
Receivership.
function
of
the
field
operation
(by)
decentralizing
administrative and managerial functions. (29)
Implicit
in
this
approach is the goal
enriching
of
potential
resources for the Housing Manager,
increased
autonomy in
improvements
decision-making,
added
and repairs or special management
be it
the
through
dollars
for
training and
assistance services.
In
an institution the size and with the reputation
the BHA,
of
to implement a decentralized management program is
a delicate proposition.
In order to avoid past mistakes and
to creatively work within existing constraints,
such as the
BHA's various binding collective bargaining agreements,
the
process
and
of
management
preparing
initiatives
Roughly
Division
of
construction
some
for
decentralized
maintenance
was time consuming.
500
people,
Operations which
management,
work
includes
central
in
the
Authority's
field
management,
maintenance,
security,
tenant
selection and indirectly,
some supportive services.
It
an awesome task to relate
job
is
performance and operational
the goals of
good management.
policy in
In
functions,
a manner
the short run,
employee
that achieves
training for
employees,
clear
accountability
job
are
blocks
building
descriptions
created
upon which
and
in
order
other
measures
to provide
decentralized
the
decision
of
basic
ma.::in g
depends.
In
own
acknowledging the Authority's
staff
and
portion
of
operating
its
resources
housing
Receiver/Administrator
commitment
to
provide
management
to
use
its
the
major
services,
the
comments,
"Some
might argue that
the existing
public
system
of
service
delivery
ought simply to be dismantled and replaced
with private,
contracted services. But there is
no evidence
to
support the notion that
such a large enterprise
can
be
dissolved,
even
with Receivership;
(and) there is
little
evidence
that the private sector has much more expertise or
capacity
in managing subsidized family housing.Clearly
the
level
of competence required in planning,
construction
and
management
to
achieve
the
majority
of
the
goals
of
Receivership are unprecedented, not only for the BHA but for
most public
organizations as well.
(30)
In
of
addition to modifying
an initiative
the Authority,
decisions
implies that
services
is proper and
own
character
participation
prerequisite
and
in
the organizational
resident
participation
essential.
Each
neighborhood
major
for
to decentralize
management
character
management
in
management
development
history
reforms
and
is
implementing a responsive
a
has its
resident
fundamental
and
effective
to
preparing
management program.
Even
with
maintenance
budgets
or for
comprehensive
administration
and
a
decentralized
groundskeeping
monitoring
services,
BHA's
public
coordination,
required
to
approach
remedy
/1.
safety
annual
operating
services,
planning
and
the wide
range
the
necessary
of
housing
code violations goes beyond local
are
limited capital resources,
remained
agreements
subject
and in
were almost totally
to
the
management
the personnel
BHA's
There
constellation
collective
most public housing areas,
lacking.
capacity.
bargaining
city
services
CHAPTER VI
The Management
In
Models during
those
widespread,
projects
where
management
comprehensive process of
When
the Receiver/Administrator
powerless
muggers,
drug
overwhelming
isol1ated
substandard
reforms
the
felt
Receivership:
were even more
physical
began
his
tenure,
from
protect
themselves
traffic
was
widespread,
a lack
families
on
of
communi tV
one side of
were
critical
and social
to
and
conditions
and
to
recovery.
residents
thieves
and
unemployment
was
recreation
space
the development
from
the
Other.
Most
important
the
need
was
to
violations.
Work
anti
quated
had
major code
ceased and
ex:termi nati on
sporadically
instance,
system;
provided.
and
Entire
turned
preventive
Judging
the majority
Cathedral's electrical
on their
time
t.
electrical
maintenance
what
had pinhole leaks throughoLut
every
and
experienced an
surface of
of
for
plumbing
simultaneously
and
groundskeeping,
windows were
Way,
entire
building
repairs
of
systems were deteriorated.
Fidelis
was
for apartment
such as
broken
building
its
orders
however,
capable
the Authority's massive numbers of
services
replacing
receivership,
to generate a management capacity
responding
basic
to the efforts of
was ultimately
v. 's,
a
washer
outage.
efforts
BHA's
In
wouldn't
households
or dryers,
short,
the
routine
scratch
the
needed.
from the advanced physical
of
few
system
family
and social
developments,
the
decl ine
initial
prospects
of
with
State Sanitary Code were
the
the BHA bringing its
housing
into
poor,
at
compliance
best,
maybe
none>xistent.
The money and human resources necessary to make
a
the Authority's substandard
dent
in
insurmountable;
cutbacks in
particularly in
impact
buildings
conditions
standing
in
regardless of
such
as
near total
that
maintenance
interventions would at
bringing
were
in
such
uncontrolled
crime,
poor
occupied
condition?
least start the
What
process
apartments and buildings into compliance
State's sanitation codes,
order
its potential,
abandonment and
apartments
the
a time when federal
time high.
What management approach,
of
seemed
public housing operating and modernization funds
were near an all
could
1980,
conditions
given that the routine
system could never adequately alter the more
housing code viol
with
wor.:
serious
ations?
The (-ut hor i ty' s Fri vate Management Model:
The
typical private management
BHA manages,
built
just
modernized small
Highland Park
ETC of the South End),
where
firm working
with
family developments,
units,
the
(ie,
28
scattered sites managed by
or elderly housing projects.
private management was brought
In
in to manage a
cases
large,
distressed BHA property, the development has been slated for
major
improvements
Services.
is
that
could
Some of the reason for this
the
All
in
supports
contracting
monies for paying a private
be included
proposal.
and comprehensive social
tendency
management
the redevelopment financing plans
but a few family developments were
and
firm
and
managed,
therefore,
under
the
auspices of
the BHA's
field
management
department.
Using
private
developments
management
was
incorporate
the
redevelopment
possible
costs
allowed
to
for
upon
based
a
for
renovation
Through
the
management
back
the
was
technique
temporarily,
complex,<
private
With
the combination of
phases of
future
environment
subcontractor
with
the Authority
management
services during
postdevelopment
responded
property,
turn-key mechanism,
incorporate
social
buy
financing
post
a fix:<ed price.
and
and
then
(The
a BHA property
its
over
its
development
the BHA to
turn
into
Because the
rehab of
could
developer.
this development
at
administer
model
not the only, housing
sector).
family
Authority
a turn-:ey formula,
developer
to
the
the management
the substantial
private
able
if
the city's public
mechanism
distressed
as any conventional
BHA is one of the few,
entity in
within
because
and
plans just
firms
plus
services
improvements
the
process.
in
monies
several
proposals from the
the physcially poor conditions which
to
both the redevelopment
the reconstruction
the Authority,
to requests for
was also
the
physical
earned
as
private
BHA,
a
firms
despite
the management firm had
to address.
Another
attract
of
were
condition
which
capable private
its
the
most
enabled
management
firms
distressed family projects
buildings
slated for
the
Authority
to manage
was
renovation but
that
to
several
not
insome
only
cases,
(not
includding D Street),
res ident population,
who
were
management
buy
strict,
into
could
management
apply
methods
redevel opment
sites
would
conditions
to
their
such
endorsed
at a minimum,
Another
management
plus
or
Soon,
In
the Commonwealth
as
housing
management
the privately managed
not the rule of
in the case where
a
services,
private
residents
of the concept.
where a private management company
contracted by the Authority,
for the model.
their
Way,
Fidelis Way,
for example,
Tenants Association,
receiving,
development,
management
they
Bart
grounds
not
system to come in
Residents
enforce
the funds to fully
did
perceived
the president of
McDonnough,
want
modernize
BHA's,
for
their
"incompetent
that
the
Authority
would fail
to
would
maintain
and buildings and would be incapable of
neighborhood
said
and mess things up."
lease provisions,
its
was
residents were active lobbyist
residents were concerned that after having fought
finally
For
most BHA family developments.
was that,
case=
private
location.
improved
company was contracted for
many
their
would be the exception,
were enthusiastic supporters
In
of
management
dramatically
family complex
all,
as Fidelis
housing conditions found in
and
"losses"
i-f not
most,
services became more effective.
that
tenant
tenants
least more approximate to the private sector experience,
firms
BHA
new"
policies.
With the risks of management
at
percentage of the
would ultimately be "brand
to
willing
a significant
not
the
creating
linkages and enthusi asm for Fidelis Way's
new
commun ity.
Somehow,
due
t o
keeping
operating
expenses
income,
residents
felt
"accountability"
operating
Lease
the
would
line
would
about the terms
whose
f
ow
of
behavior
and pride
reputation
income was determ ined
saving
cost
habits
automat i cal 1 y enhanced by a no-non-ense,
would
management
by
of
success.
consistent,
and
of
operating
profit--no
management
appearance
its
management
no
be
incentives
with
confident
performance,
be routine
development 's
powerful
governs private
enforcement
techni ques
in
more
which
insufficent
the
thei
r
in
be
exepert
operat i ng
results.
In
urged
the case of
the
Fidelis
A uthor i ty
company,
rather
bel i eved
would
Way,
to
than
seek
use
for
out
instance,
a
private
managers
BHA
be unable to establish
a
resi
dent s
management
whom
residents
strong
mangement
presence.
In
pr i vate
n
and
the Fidelis
management
ex ample,
the eBDHA
firm encourage full
insisted
tenant
and
pr-act i ces.
the sanctions of- the Author i ty
With
partnership
redevelopment
development
its
tenant
thI e
long
The
process.
proj ect ,
organization
term -Sucess
only
1i.n
located
implementation
eppion
t i
ee.
in
a
period
a common
the renovated
t
:. he
moderni Zed
vested
a
lf
into
stage
management
and
the
r ul3es
i t
was structured
the private
held
Tof
management
the construction
By
both
of
that
participation
the preparation
tenant-manager
b
Way
of
the
the
firm
and
iterest
in
housing c:mp. ex .
pr i vat e
devel opment
management
model
has been the BHA ' s
tenant
He
t::h
management
Tenant
Mana gement
The Atut hori ty'
The
in
program
Tenant
for
Authority
the
TMC's
(:ontrol
In
as a private
Model
and
was formed
private
the
of
TMC.,
t he
income.
BHA
Bromi ey' s
department
TMC
is
dispatch
autCmat ical
TMC
f our
or
management
focused
in
conjunction
contractor.
of
with
Through
Brom.ley
Heath
manaQement
developments.,
and repair
strategies
function
Like
attention
on
That
Planning
playing an
any
within
services provided
its
BHA's
TMC
the same
must
conditions.
not
its
by
the
upgrading
effort
has
and
been
Redevel opment
active
roL e
obligated to pay union
and
jurisdictional
un i ons .
or Living
included
Board
time,
to TMC board decisions.
With
operating
system
1ly
Since that
in
a 1
the development (s).
by the craft
t y'
in
family
maintenance
the
decisions affecting
personnel
as other BHA
the
with
six.ties
late
HUD.
abides by
the TMC
has
by
of
residents
firm,
physi ca.
(::oordj. nated
The
BHTMC
accordance
management
margin
the
TMC
has worked
board,
practices
in
in
a pilot
management
job descriptions,
differ
(TMC)
policy.
general,
although
the
TMC,
B romley
(BHTMC).
residents to take part
Bromley
governing
poliJ.cies
Iuthor:i
Mar agement
Heath
management
provided by the
A ssociat ion,
Heath's TMC program
the
abide
which is
sponsored by the department
Bromley
may
s
Bromley
order
model .,
so rules,
in
By
agreements
the
policies
Unit
the
wages
TMC
or the
same
with
BHA
tok1en,
Such as
the
ALuthority
so specifies
the
order
are
approach
to
Li de
work
inspections goals
management
nor
not
unless
in
their
TMC contract.
Li ke
can
the conventi onal
allocate
tasI.::S
its
Like
force
in
private
organizing
making
enough
Thus,
pri vate
however,
TMCs
profits
the TMC
mandate
to
is
income
and
safe,
model
ex
Crci ses
managerial
resources,
there
feature
to
the Author i. ty'
TMC
a conventional
acq.u i red
participation
resident
in
an
to
the
expenses,
and political
addition
tenant
benef its
loose combination
whi ch
seel.::s
public management
decent
to
to
of
the
increase
model
and affordable
the
whose
housing
management
In
the BHA's
owed
char-ac ter
of
over
ty
its
has been
In
ex cep t i on a 1
and
BHA
to
pr i vate
staff
and
collaberative
case.,
amount
tenants
managed
r-esi dents to ex erci
thei r
the
on-site
a highly
every
redevel opment
privately
which
s pr-i vat e management model ,, be it
firm.
organizations,
all
fl 1.ex i bi li
the decision making
desi gn,
have
Unlil::e
accountable to
In
the
to
hi ave
important
the company's board.
becomes a
on
or
an
services.
legally
meet
TM'IC
fami lies.
addi ti
management
are
the
job classes and
costs are
managerial
concept,
provide
of
fi rm,
goal s.
model
management
profits
In
and
operating
potential
low
staffing
considers social
firm
important
a variety
company.,
who control
management
be
any private
residents
to
labor amongst
management.,
their
pr i vate management
process.
i nput
and
Through
their
have created or
shaped
pol i ci es.
sites,
se more
1.oc al. man a gemen t
residents
BH A
of
a
ci rcumstanc es
influence
structure.
over
Bec
use
the
of
the
un i que
of modern i z at ion and resident
level
ef f orts,
man aement
mnanagemerit
model
prop::jerties of
The
i.
s
i t
will
wor k.: in
policy
is
effective
have
model
yet to
or
thorough
residents?
its
newly
Di rectors,
who
either
department.
of
to
referred
decentralize
of
ace
a
cl ose
those
issues
management
model.
by the
on
field
Authoritv
model
supervi sors
to delegate
Management
its
to
signi
f
ic
i.s
or
ant
managers
local
examining
i tv,
found
wi th
1 ocal
their
managers
model
supervisors,
(D. D.).
each headed
its
that
changes which the
Directors,
districts,
Model:
management
middle management
administrative
accot..intab i
n
a private
field
organizational
to a District
in
the
on.
the first
reduce the number
mai ntai
This manaqement
di screti
the Decentralized
mal.::e to
wi 1 1
decentralized
administrative
are empowered
jurisdicti
their
One
nterf
four
and
use the most
Many of
instituted
and decision mak-::ing
Implementing
seven
in
and
has been administered
Operations
around
authority
then
examined
program,
organ i z ed
had
with
Authority's
management
un der
pri nci p1. es
be fully
How
these issues,
the decentralized management
The
A rea
tal.k:e on
managerial
relationship
tough
-the BHA":'s new tenant selection and
equal l y controversial..
private management model
working
p-r i vate
more di stressed f ami Ly
housing goals involve
sensitive housing issues,
cost
other,
the
i nto
the Au4.tthority.
Authority' s fair
transfer
how
c Iear
not
i nput
in
to
were
were
by a D.D.
The
lines
of
Directors
the
who
There
organizational
District
was
EHA
most
did not
productive,
consistent
or
'To
the
coherent
fashion.
streamline the central
field
management
Supervisors
department,
went
from
regionally defined
area,
each
Area
Director,
management
issues and
Directors
the
report
Each
experience
Director
and
can
supplies,
staffing
a
manager.
the delivery
for
oinsite
a
management
crisis,
involved
On
in
reports
to
several
title),
c 1 er k.
their
closely
budgets,
capital
local
the
management
manager,
of
the local
the
local
manager,
the manager,
a clerk
groundspersons such
janitor/groundskeeper
one of
their
field
Area
1 ocal
field
appraisals
ultimately
most
the
the
making
to
responsible
the
BHA' s
maj or decisions or
the Area Director does not have to be
day to day operating
all
Area
purchasing
services thorugh
short
for
Depending upon
performance
is
and
improvement plans
management,
Director
but
with
authority for
conducting
The Area
team,
local
budget
and South),
a
the BHA.
has worked
expertise of
ta.--ing
Operations,
within
operating decisions.
of
each
Jurisdiction.
of
of
management
of
accountable
to the Chief
local
the average,
consists of
and
needs within
decisions and
local
four,
now being fully
delegate full
doing
to
number
(east, west, north
Area Director
to make local
the
administrators
managers to prepare
and
seven
directly
highest ranking
administrative structure
intimately
activities.
onsite management work force
a maintenance supervisor
or
clerk/typist,
as
a laborer,
and
perhaps
who
a secretary
a
(entry
level
work
order
Crafts
sites
onsite,
time.
ffull
most
whose
job
wor::
collective
wor-
order
ability
of
maintain
a delicate
person
onsite,
The
major
dispatched
Directors
can
with
Site
a
The
argument
for
the
in
craftspeople
place,
Thus,
upon
the
manager
right
the
crafts
manner.
the
system
than
B HV's
union.
centrally
is
that
tradespeople
Rather
to a
Area
gi ven
leave a carpenter
unconditional.1y,
of
Area Directors
the
local
a timely
until
assigning
specialized
consistently
-to
the
use
their
more efficiently.
biggest
twenty
a
locally
tasks,
dependent
continuing
system
a
development,
by
getting
tradesperson
one
a given
help
assign special
at
of
the Trades
to
time,
"gang"
enables
development.
to
onsite management
There are constraints
groundspeople
facilities
development
from
maintenance
team includes
twenty five persons
maintenance
and
Director
coordinated
trades people
of
directly
advanced planning.
centrally
than
system was
do
development.
regulated by
with
and
steamfitter
workers,
highly
the right
crafts
the
completed
balance between
at
progress
a few general
agreement
Area
the
although
in
examples
be at
orders were
bargaining
local
common
for
assignments were
is
time to
who may
Except
centrally
work
full
carpenters-are
craftsperson"
recently
related
assigned
and
"assigned
dispatched
craft
craftspeople
Glaziers
Cr
are still
where extensive
have
the
people
when
working
which
the
affect
supervisor
but
worI::
in
in
most
of-f ice
say
cases,
close dail
y
a
more
local
supervision
management
are widely separated,
one another,
at
no
and
across the
the manager
coordination.
Typicallv
local
service
are
manager
maintain
contacts
also
in
management
centrally
steady
supplies and the BHA
located,
requiring
communications
purchasing,
budget,
with
legal
fleet
that
the
desi gnated
and
personnel
departments.
The other major
to
interact
as
rangin g
well
interview
assignments
residents.
resident
S.tbpl an.,
really,
are
Administering
made
administrative
oriented
communications,
to tenant selection,
final
decisions
are
programs
such
or preparing a project based
under
the
local
local
been longstanding
Authority
s
as
a
Fair
modifications
task:s.
Housing
residents
projects,
also
These functions
duties for the BHA manager,
recent
resident
on
budget with
duties.
(its a
managerial
security services and
manager's
is
All
downtown),
special
overseeing
fral 1
as
in the manager's onsite role
from lease enforcement
tenant
or
their
with
functions
element
of
the
have
predating
Housing
the
Mana ger s
job description.
In
addi ti on
structure
of
management
capital,
program,
reorganizing
initiatives
capacity
there would
services.
The
tried
-facilitate
to
concern:
modifying
proposed
improvements
role
strategies
serve to enhance
to
reorganization
the
decentralized
have to be massive doses of
the Authority
general
deci si on-maki nq
administrative
which could
of
the
Authority's
highly orchestrated
policy
term
the
to
in
of
deliver
its
process,
three major
the
Housing
and
the
long
housing
therefore,
areas
of
Manager,
reviewing
the Authoritv's pol]iciess and practices to
management
the
process
and
ix ng
f
up
local
assict
property
conditions.
Redefining
current
'The
in
the Role of the Housing Manager:
job description of
negotiation with the Teamsters,
group for Housing Manager,
Clerical
and
Office
to supervise all
job
Workers.
The basic features
mai ntenance personnel,
description
Manger is
AS
for
the
dir-ct
of the maintenance supervisor but
the
Housi ng
mentioned,
are
of
managers
process of preparing a local
and
performs
or del egates al.
tenant
f i cation,
wi th resi dent
The most
servi ces
capital. improvements
field
the termination
ft..nctions
Manager's role in
plan
record keepi ng
such
as
income
and wior.:inq
an ongoing basis.
are
responsibi 1 itv
hiring,
process of an unsatisfactory
Appl i cants are screened by the central
the
rel ated
controversial area of expanded
and
ec::ts
the
and community groups.
been the Housing
s
for
they participate iln
enforcing BHA's lease provisions,
has
candi dat:es
responsible
operating budgets,
local
the
certi
tyV
includes
an employee.
all
authori
the
The present
employees.
not authoriz -ed to fire
preparation
of
a. 1
including a role in
Manager
the
is
bargaining
Maintenance Supervisors and
hiring and terminating of local
supervi si on
and
the collective
proposed job description includes the
AIuthority's
the
the HOusing Manager
When a manager
Forwarded
job f inalist
personnel
needs a worl-::er,
to managers who
in
collaberation
evaluating
empl oyee.
of f i ce,
prospective
interviews
with
on
the
and
Area
Di rector.
The
manager
can determi ne the c:ond it: i ons= of
mpl oyes pr ob at i on ar y per i o d.
In
manager
is
or even,
demotions for all
BHA
in
now asked to make
managers
expanded
process.,
the hiring
recommendations
onsite personnel.
on
and
job
There is
duties
greater
mariagers and respe(:t for the
withi n
The majority of
the
central
field
BHA's
performance competition amongst
j ob,
within the A.uthorijtv,
for
the
improved
of
delivery
services although the expanded role of the field
been
prob Ilemat ic
neg oti
their
The revised job description of a Housing Manager
been
for
the
promotions
have expressed great satisfaction with
role
operations.
grown.
as well,
to participating
addition
an
the
Housi ng
has
has
management
manager
lanager' s
has
un ion
ators.
Un i on Membersh i p Pr obl ems:
mai ntenance
Managers,
are members
personnel
supervi sors
and
of the the Tamsters.,
al.
].
wh ch
Cli.
ri cial
i n
the
days prior to the BHA's decentralized management system., did
not create maj or conf. i cts of
Massachusett s State and Civil
'The
(G3eneral
A(ct.,
rights
Chapter
Law,
The
secti
act
2) ,,spells
on 5)
rig hts
to
out craft
.,
their
employees
and employer
a
:ersonneI
dec i si on.
E mplovees
the
negotiate
emp1. oyers.
are.,
(150
E,
units,
(150
A.,
and addresses aspects of representati on,,
grieve
today.
regul ates
unions and to
agreements with
defines who public
does
Service
150 Section E)
of public employees to form
ol. .ec t i ve bar g an i ng
ecti on
interests as it
The
such as
1aw
al so
and
bargaining
considered
management,
defined
in
While the Authority,
performance
appraisal,
incorporate
those
duties
Housing
Manager
without
Housing
Manager.
As an
authority
organizational
the
Teamster's
In
task
to
status
of
the
not
"manager"/
to
eligible
terminate
to make
hiring
of
definition
administrator,
be
included
in
bargaining unit.
the Housing Manager,
actually
by
manager,
becomes a
report
f-ormally
the
the union
the
to
as
of
to the controversy over
managers
construct,
as well
the job description
current collective
addition
of
duties
into
is
the
service
unable
employee designated
which
classification
a job
been
risking
decisions,
firing
and
managers
principle, has delegated hiring
has
it
in
within
to the Housing Manager,
responsibility
and firing
are
unit.
bargaining
collective
(They
civil
and
state
the
of
bounds
jurisdictional
the
are engaged
remained
and
staff
of
arrangement,
this
Within
line
as
functioned
150 E.
who by definition,
activities).
making
Chapter
to
referred
(now
authorized members
under
unit
collective
Clerical
management
field
supervisors,
who are not
Area Directors),
policy
and fire
hire
manager
with
employees rested
as
to
authority
the
Workers,
Supervisors and
Maintenance
representing Managers,
began
Teamsters
the
when
1968,
around
Since
Relations Board.
Labor
the state's
of
purpose
describes the authority
fully
was three years and
agreement
bargaining
a collective
term of
the maximum
that
established
that
or
given
it
the ex:panded
the
present
has been a
reprimand--or
job
union
camplicated
sometimes
to
the
in
employee
Regardless of
is.
in
participate
grievances are,
(managers are co-defendants,
performance
by a local
sufficient
documentation
if
Labor Relations board,
the ideal
In
their
within
from
distinquished
less
this
of
the most
unions never
"rank
and
poor
work
have
performance
settled
the
by
face such conflict
always
and file"
is
management
ranl.:s.
fellow
aspects of
difficult
hire
managers
managers
situation,
problems with
to
so requests.
the organization's
ideal
to speak,
poor
be
still
so
cases of
worker,
resolve
worker
because the
performance
resolving
one
than
to
a
situation,
midst
most
maintenance
grievances must
although
disputes
In
employees.)
management
field
right
the final
who retain
Directors
Area
with
union
by one union member,
in essence, being filed
another,
against
to
manager
decisions,
firing
and
hiring
local
their
decision.
field
the
of
role
expanded
the
Given
in
unions
demotion,
a management
to grieve
act
must
usually
members
or
dismissal
grounds
to protect the work rights of
responsibilities
their
fire
cases of
in
reprimand,
for
or
style
the management
field
on-site
other
every
virtually
Manager,
Housing
the
with
Laborers),
of
Brotherhood
International
(they are
the same union,
in
are not
laborers
Although
members.
union
fellow
promote,
objectively
their
union
report
In
that
members.
expanded
is
rol.s
(1)
There
court
is
receivership
of
a future
and
uncertainty
the prospects
ahead with the
of
Housing
end of
Managers
rej
ng
ecti
their
description is
new
job
union
in
unlikely.
lieu
of
Managers do,
description and hope
revised
however,
For a
between the union and Authority
their
embrace their
compromise
reasonable
during this
job
next
collective
bargaining agreement.
One
obvious
Housing Managers.
under
option
is to
This is
not a likely
capacity to direct local
fail
concerned about
distinct
however,
with private management
union
firms,
controversy.
(Corcoran,
nor
Action),
counterparts
Thus
tends
and
added
are
does
not
flexibility
and analysis.
decentralized
management
model
s,
faced with the same kind
of their
private
management
managment
Rox bury
corporation,
(TMC),
unionized.
many respects,
the private
using their
model
restrictions
within
the
BHA's
it
not
clear
despite
their
By the same tok-en,
that private managemeit
in
manaqement
due to jurisdictionl
create internal conflicts
strucuture.
evident
is
a
is a pressing matter
Emergency Tenants Council,
their tenant
to avoid conflicts
management
nor
in
OKM,
None
into
or tenant management
neither private management model
city
employment or
The separation of the Housing Manager,
comparing the Authority's
model
of-
also
k-:eeping their jobs should the
bargaining entity,
In
out
operatons but they are
and warrants long range assessment
of
option,particularly
to monitor the influence o-f patronage in
promotions.
For
managers do not want to loose their new
court receivership;
equally
union
circumstances of removing the Authority
the
found
form a separate
firms,
is
human and capital
resources
are
capable
aged
BHA(s f ami Iy
ho.s.
ing developments.
Obvi0usl.,
the
manacemenit model
and
Pri
or
resident
vate
has
i nterested
in
resources
most
management.,
+ar
more
in
freedom
typical.
I
which
efficiently
the
in
managing
can
is
absence
of
a
al locatinig
physi caly.
most
its
ma.j or
pol i cy i ni t i at i ves whi ch go beyond
BHA
specific
devel opment
The
related
of
to
housing
adm i ni
a
root
its
strati
to
s
needs
A uthori
the
overall
and
ce
b arc gaining
which
recei
niegot i ated
ts
of
si grIed
B(ui 1 di rIg
i I
the
and TradeS
empo :yed
by
bar g a i 1,. n q
the
The
Council
BAP-1,
agreement
tint erni at.
ti on
a
most
j us-t
or
first
ed
ces,
service
management
the
Author i tv
an
of
of
C.'
all
the
3'5 0
latest
1 98
agreemei t
not abIe ea
with
aid
iMarch
m rampgeement
four
di re
has
of or
management
contract,
i n riegot i at
their
model.
Agrineements:
per sorinvel
i ng
be i t
contract,
Teamsters
represent
September
comp let
,
its
comp l. ementar y
enhanced
c. osed
ir
a
BHAs
i s
a
service
agreements
A new contract
o
probl ems
Barg airing
ui ti matel y
The
seated
practi
1oc:ail
i C t the
Ac"uthoritv.
waters
addressing
at ives,
was dec 1 ared
Ac cord
1.982.
deep
(:oitract
the
exampile,
~These
the
properly
initi
bargai n i n
has
in
most
to
go beyond
for
circumstcance.
Collectiye
colectie
agreement
capacity
s
agreement
versh i p
un i on g r oup s
each
ty'
or
improved
Impr ovinog1 he Ar.thoritv's
Si
arnd
New pol:i cy
ve goalsa
issues
be tested
inability
communities.
c ol l ec t i ve
spek
:
1 abor
resources.
model s
to
its
desireable.
union,
management
have yet
use
y
was
:ion now.
caft
The
s workers
col. 1 ect
i ve
the Laborer '
of
1 984.
i mp r ovemen t
achieved
t hrough
the collective
recent 1 y
si gned
B9ost on Biing. d ii
agreement,,
any
The contr ac t
craftsperson,
can perform..
can
now
former
labor
for
making
iapl,
wi 11
a
uli on
have
in
i nvol vd
fai
r ac- k ,,
f f i c i onc y
tasks,,
r 1ly
project,
a
1in :
order
wrk-::
i ts
In
way
for
system
apartment
order
and
i nspection
to el i mi nate
the BfH
must
hae
a
h o t..tsi ng p robI ems.
Inspect i con Pr ogr am f 11 owed
can also
Wit
an
enhance
t h
c on t r act
made
improved
work
its
preventive
servi ces.
of twe.nty
tnsk:: ill
ed
switch p ats.,
and
Wi th
Inspection
other -feature of the new Trades Cct.nci1
the cr eat :i on
several
system.
a program vi able and f easible.
The
under
order
b ec at..tse feat t..tr as cf the new
mai ntenance and repair
or trade,
requi red
work
it
:BHA apartments.
BA
thich
which,
schedule to a systematic
s Li vi ng Un i t
the
l abor
the Authority
v has cleared tie
invant ory of t: he ir
system,
the
a carpenter
semi s-i 11 ed
form the foundati on -for
agreement
order
)t el
would
,
mai ntenance
HA
on
tasks",
nui..meroaus housi ng code vi ol at i oa,
The
was
"neutral
allow Lhe Author i tV to
comprehensiv
such
.job classi-ficati
Living Unit
process involving all
it
t asks ofT
i mprovements
Authori ty's
bui I di ng
spec .i f ys 3'5 nei..tr a I
to comp 1 ete var i ots
major
wi11
Counc i 1
agreements,
The
that
Tr ads
set of
new work agreement
was
process
and c:omplete many assig
inments
t r adespr ons
this
and
regardless of
With this
start
bargaining
1 ab or c ost,,
generic main 4ten anc
task-:,
( cha ng i ng
ocks etc.
.
the eedAut--irty FJ
aqreement
.ob:
ie
- i ch
soap
di shes,
For t he s1ae
arh
t:.
c,-f
i t
Ih oul. d
d: 1.l. ar
tha
-
n
pe r
t 1i-1 r
an
pa
hour
Through
ni ng
bargai
work
(oncert
decentralized
must
a
ob3j ect i Ve
j
in.formation
with
One
area
managers
h ave
t wo
process
coordinated.
iu1 1LsFt. rat i on
the
ei.
some
parts.
and
area
thoe
u.C:mr
ig
During
i
the budget
prepared
r ep a i red
g
ho
:oeri
s.,
WJhen,
or
i f ,,
ac:men
or
repai
ep::a r
and
a
the BHA
i mpr ove
establih.i
h
wi th
worker
ph ysc i a.
wh i ch
-f rom
I n turn
i I
Main,
dep artmnt.,
e ar
i
r
eac
qe
st
1 othe
an
t h at
-f
, the manager
budgt
budget
i ng
or
h ave a -Fl: 11 ow
-f v-oru pgraded,
syst em wi 1.1. I e
0uknown
c
i s
improvement
pl anni ng,
Ma ii
as
rep 1.ac ement
p'roces
a capital
b )i I. r
i s
the
wh :i ch
centr all 1y
are
ACE?..
e,, 1:t
d
rol
. mpr ovemen t s
Mi ssi on
planning
Mi so i on
the
3,
I-f
and
each
its
needs.
the unde-f ined
iis
C.
Cent
ral
menI.
e
ve
Constr.. cti on Departments:
management
new boilers
i mp
cti
. unions
job per-formanc-e.
example
ca:
a
director,
eon
e.
its
needs
conditions
ac:t i -v it iLes
cnstruction management
le
man agemen t
boi 1e r is need r op a i r
included
ne w or
r
st.
one l
c.-F
gv
to convey
goning tosucceed,
their
pl ann i ng
an
$ :1.5
be ro war ded .
cr i i cal
Take
cOeI
enab les
whi. ch provides
ccontention
i n the
that
physical
Pl anni ng and
f
is
- :J.
i t(
about
:b per f-or mance c an
Inter-facing
I hat
model
mechanism
sory
the ir
in
organizat :ional
larger
its
Especi
has tried
a manner
sen se
a -Fi rm
to improve
supervi
good
with
management
est ab Ii sh
abiity
its
in
-
li cwhere.
the fAuthori ty
priorities
an average
tsch
tasks
i mn
provemTents
:ovenants,,
:in
orm
ar e nceded
gradual.
operati. onal
t. o
ts o p erf
s it 11 i
ian cr pl Imb1er
e1 ectr ic
manager
.
at....ed
-For
u nt i 1 most
:
inpu ti
te J.pci
de
(atil
:t th Iei in ater
in
ab
rel
the
ated
to
Other
t he
i n
poor
cont i n.e
possible 0.
are
y,,
thes.e
types
of
wh i ch
huge
Tei In fuOsion
of
ma
Capital
srp c hi al vac an cD y
opment
devel
of
iI id
:
appFr oval,
and
c subs i d y
or-
uSed
Fed e r a .
r
no
wh i I
to
It
and
pr obI 1 ems where
al lev
is
some
i ate
an important
al though
shook
he
their
most
heads
A t..t t h r it y:'s
been
to
i n vol vi ng
monSi es.
in
of
step
managers
si
l Ence
over all.{1.
i mp 1 emen t
$5.. 9
mi l.
i on
!
over
1. 6
i e1d
cap i
a
dol 1. ar s
i i t i E.o
and to
1 i ng
rescue
reiains.
modern i Z at i on
dc eve 1 oapm en t-,
i eso
i: :
mi 1 1
al
in
maj or
:in cIdol 1 ars
:L98~
opmenL s was.,
: tUbl Ii
has
physsi cal
tn ypi call y .,
of
pro.j ec:ts. total
Freparing
lost
Resources:
re h ab
year
of ten
act i vit
i mprove
i nt.:enIdc
vol .. imeso and
p r o g r am
as of f i sc al
t o
procedutres.,
approach
. mp r ::ivement
redevel
i s
jor c: omp on en t
man agemen t
are
the Author ityL publI ished a Lhr ee voluime
operating
the
which
are
cent ral
operat.ing problems,,
i oforialiing
the
boilers.
pr-act ices
progre
anc iAd .
i nl c:resE
prob l ems.
the
f i el d and
in
1.d
iw
te
operational
efforts
man .a
D no
of
between
i on s:
at
condi tions
ogj ai
operat
1 ooked
on-si
ha v
sL el ec 1 in p r o ccsiss aso w. el
p ro c(ess.
to address.
and
Recenl
Id ea l.,a
o1a r p ro u r- F ct r :.
s c hedLI i ni
1 i ity
policy
f i lzed
are
:i
as the p::: r opoCsed
manager' s
i
plans
for
c
omp Ii cated
ass. . ista nc e
several
depended
i11 n*Lthe or i g . ri I
st atea
>is,
f i nan c: ed
:: c pt Lb
y
proj
e(:ts
the
bi g
Lhe fact
that
uj on
t ype
the
In rst r uc: t i on of
d eve 1 op men ts. we r-e not
a
by
of
ab 1.e t
ip ec i al
were
Se
l
i noi
e
t he
At at e
.i s. aI i v e
g i L::1
cr
federal
certain
The
modernization
short
of
physical
conditions
financial
aid were
monies.
the story
had
is
not readily
determined
given
development,
the next
federal
financing
bad
sources
prerequisties
In
of
effect,
3 subsidies with
Field
state
a
involved matching
a
(or using
such at at Franklin
section
how
the modernization needs of
sources of funds.
solution
swapping
"available"
interchangeable.
the Authority
or
regardless of
gotten,
once
state
that
creative
which
involved
programmed
monies
etc.)
As mentioned,
managed
an
enormous
improvements
Field,
Bromley
Heath
redevelopment
Columbia
projects.
sites
have
process,
One
trend
redevelopment
of
both
design
i ssues
Point,
process
included
included
and
features
staff
implemented.
complete
(Tak.::e
Fidelis
Way,
programs
in
total
the
the
developer
services
strategies.
the
a matter
compound
and
these
with
overall
reduction
in
of
the
concern
density and
management
and
with the Authoritys
and debated
for
at
agreements
Certain
tenants with
Broadwav,
West
from
Residents working
examined
capital
Mission Main
management
has been
to
and properly
supportive
emerged
which
tended
have
amongst
a role
BHA officials.
have
problems.
has
formal
and
has been a
units,
residents
and
to
Cathedral,
relocation
which
as-built
maintenance
pL anni ng
money
and post redevelopment
agreements
number
of
The management
tasks forces which
selection
for
sum
and to redevelop Fidelis Way,
Fran.:lin
1 oc al
the Authority has attracted
creative
example,
many
solutions
where
of
these
bei ng
residents
factored in
a public car
on the premises,
One
overall
the
the biggest drawbacks,
overall
with complete
reduction
fix:<ing cars
in
so to
speak,
redevelopment
apartment
units.
in
In
number of
One
original
units after
additional
repair programs,
the trade-off
feature
be it
total
been
order
better pedestrian circulation or to
monies for other uses,
the
has
the private space qualities or adequate unit
facilitate
has
to deal with
minus the eyesore and security problems)
experience
achieve
to
of
repair lot
to
sizes,
allocate
has been to reduce the
redevelopment.
of
the
Authority's
redevelopment
capital
or modernization,
been the collaberative experience of residents and
BHA
Staff during planning and construction management periods.
Typically,
.are
prepared
full
indepth
during the redevelopment
resident participation
management rules,
space
uses.
important
process,
fro)m
post-development
the
driving
although
is
planning process with
force
board,
the priorities
to
residents
behind
the
and
a mutual
have
local
been
an
development
of residents have differed
development.
that the manager,
trust
occupancy
in establishing post
The
central BHA
residents have had to work hard over time,
teamwork.::,
plans
design characteristics and community
Across
development
however,
final
management
common
outcome,
employees
and
to establish the
confidence necessary
to
mae.:
the capital repair program a success.
Improved Financial
Since
Management
receivership,
and Planning Ferformance:
the Authority has also reduced the
amount
operating
of
overhead
eXpenses and increased
on-site
management
of
year
required
by HUD to
approved
approximately
had eliminated
this
amount
reserve
is
better
a
first fiscal
a
million
As of
its
residual
dollars
workout
the end of
plan that
fiscal
year
deficit and achieved
operating
was
and
reserve,
HUD
1983,
a
net
(although
below the HUD defined minimum operating
fiscal
standpoint,
than
biggest
optimist,
Spence,
himself.
conversation
anyone
Back in
he
six;
months
his
estimate how
properties
from.
"In
least
dollars".
listeners
that
to code,
that
case,"
1984,
far
the
Spence
Harry
recalled
a
during
the
ask-::ed
him
receivership.
Judge Garrity
mind
responded
million--if
in
including
Judge Garrity
would cost
never
is
Receiver/Adminstrator
with
court
up
$200
had
it
imagined,
January of
of
much
the Authority
ever
namely the
which
He told
to
had
bring
the Authority' s
where the money would
come
the Receiver/Administrator,
not
a
quarter
of
a
billion
(.2)
The figure
of
success
money
$1.5
in
still
shape
"at
When the
for
level).
From
first
.
office
allocated
the Authority had
its residual
$6.9 million
central
its funding
prepare a financial
and monitored.
increaseof
for
maintenance
began,
of
to
and
receivership
deficit
BHA
funds allocated
in
was not
the Receiver
the four year
too surprising,
in
attracting
nearly that
period following
been
an unexpected achievement.
the
Authoritv's
ability
but the subsequent
the conversation
Eqt..tal ly
to manage
amount of
surprising,
and efficiently
has
has
been
allocate
those monies.
BHA
The
rigorously
has also gotten tough on
enforce
its
intentions
their minority vendors and
to
a-ff irmati ve
action policies in contracting and subcontracting, and in so
doing,
the
has aided the larger community effort, to counteract
city's
longstanding
endorsement
of
discriminatory
contracting practices.
Provi ding
Improved Central
The
Authoritv
departments
selection,
which
new
crew,
view
with field
of
how
operations,
rights and planning.
departments such
completes
AccoU nt
its
Supports:
departments such as legal,
civil
created
altered
interface
various central
Department
as
reorganized
personnel,
tenant
The Authority
construction
also
management
modernization work under through
prepares
central
a
Force
contracting bids and monitors
the
Atuthority's construction contractors.
BHA's energy management,
public:
sa fety
services are central
closely coordinated
department
how
with the local management
and program efforts
administrated
functions,
of
activities
which
program.
are a few Useful
has tried to strengthen the ability
BHA
ability
rapid reoccupancy procgram and
activities
despite
to
assist
their varying levels
of
field
of
to assist the delivery of management
departmental
resources.
Appeal s for Publ i c and Fri vate Resources:
These
examples of
central ly
management
success.
services is
the main considerations when departments are charged
coordinating
are
The
one
with
Over
establish
a
education,
public
constellation of
job
safety
events for
program
training
has also
coordinated
and
hiqh
the
the
important
cot..trt
to
establish
man ag ement
management
to
internship
important
appeal
The Authority
and
public
to
also
resources
the Housing
resources to upgrade
Manager
physical
various family developments are the
features of BHA's
To
field
management
increase
affairs
the
however,
adequate
The
autonomy
has been
basic
projects.
71
that
accountability
most
funds for
improvements
strategy
has required
concise measures of
reform,
capital
private
training
as an
Authority's
and
and training efforts.
of capital
performance.
capture
ongoing
in
direct
more
serves
change in the role of
receivership.
managers
and
to
in
recreation
in-service
employees.
sources of
programs
management
the
organizing
infusion
conditions found
most
intensive,
caliber
resident
Perhaps
An
increasing
several
assist
employment,
been developed
for
perspective,
service
special
and
has attempted
the BHA
and to sponsor various
employees.
vehicle
to
the past few years.,
important
two
under
of
l.ocal
the
for
BHA
local
tool
of
the Receiver's ability
operating
costs
and
CHiPTER
'v'II
P'olick
cvad
ira
The
ining
BHA's
important
remains
units
of
to
in
bringing
to
task
Authori tys
Through
Code.
its housing
Housing Services
To
code
of
resident
begun
the
Authority's
day,
and
buildings
there
that
are
There remains
bring
and
improve its housing
of
a]. 1
with
the
management
policies and community resources,
attempted to
the
however,
violations.
compliance
into
has
this
successfu.1y
properties
Sanitary
many
apartments
by serious housing
enormous
Improve
receivership
up to code.
innumerable
affected
has
tenure
process
substandard
an
Iniitiatives
the
State
training,
the
Authority
services.
Manager Training Activities:
Management
newly
hired
In-service
manager
training
capital
and
training has also been stressed,
the
interns and
topics
like.
been
the
Vear
long,
curriculum which
management
field
in
to
Terry
Lane,
iuthoritv' s
first management
areas.
Cambridge,
training
Organized
venture has
of
management
lots
of
is
a
training
praise from
particular.
of
management
practices
program which
and academic
Associates
the
budgeting,
training
intern
has been the subject
interns
According
exciting
management
intensive
based
for
managers.
preventive maintenance
Perhaps the most
Authority's
for experienced
include project
planning sk::ills,
both
as an
and
a
the
training
program
intensive
from
consultant
coordinator
cycle,
includes five
combination
of
Abt
the
(1982-1983.)
major
of
field
stt..tdy
work:
and
classroom studies,
in
human
management
to
management
interns ta.:e
behavior,
community
principles
and a weelkly seminar
integrate
management
dvnami cs,
Work
by
their faculty or consultants
designed
of
BHA's
1 to 3,
feature
trainees
of the management
spend
Authority
in
with
worlk:ings
of
the
tailored
so
that
as well
department.
(managers
level
3 managers
1).
department
that
within
the
hand information about
the
Field
placements
a variety of management
as a range of local
The goals of the management
of
field
intern program is
time in every
order to gain first
while
managers,
being assistants to senior managers--level
observed
which is
are taught at the Boston University School.
are ranked by experience from
all
and
maintenance
the field and classroom activities
placements are with experienced senior
One
cl asses
interns.
Courses
Social
si
are
styles
management
also
can
be
conditions.
intern training program are
described as,
"providing
managers with a sense of the real lob that
they will
one day face.
We want to give managers the skills
and knowledge to carry out management functions by
teaching
them
to
be
problem
solvers in a
changing
world-- in
a
changing
(housing) authority and
system.
To be
effective
(as a BHA manager) is dependent upon your ability
to adjust,
to
be
opportunity
oriented and know
how
of
the
larger
institution
(and its
workings).
Our fundamental message to
management interns is that the job of the Housing Manager is
to serve tenants, to create a community and to keep track of
the
basics,
like
materials and worker
performance,
which
characterizes a local management operation." (33)
There is
intern
a perspective which
training
program;
is
it
integrated
is
notion that BHA's Housing Manager ,
into the
manager
thematically linked
not a distant,
to
a
downtown
authority
ffigure,
will
be the symbol
of
the
city's
public
housing agency.
Management
Relations with
There
specific
is
role
which
decision making
process
managers
must
find
input
their
planning
Management
have primarily
has
if
been
shape
other
lives
of
to impact
role
appropriate
over
the
local
enhance
orcanizations,
model.
managers have
interests.
Judge
the
to
and
the
the
actions
of
of
the
support
is
how
the viability
to
of
seeking
been
resident
to attain
If
the
there
difficult
to
achieve
input
versus
decisions.
resident
abi l i ty
of
frame
the process.
reforms which has
management
promote
It
"empowerment
is an important distinction
which
receivership
has been the Authority's effort
means
resident
the
concerns about
residents within
management
it
local
housing families.
central
of
that
whose services and
decision-making
There
that
public
both
encourage
institutions
the most
structure,
reforms
to
residents"
one area of
control
'Local
goal
participatory
an
and
explicit
of
local
a collaberative
an
decentralized
to
residents
the
activities.
during
within
the
out
legitimate
and assessment
are that
doubt
housing and community
One of
is
little
include
structured
witin
the same,
and
the
spelling
not
housing
Authority
is
resident relations
Receiver/Administrator
public
there
a way to
been
in
residents have
but
and
BHA's assumptions
common,
Organizations:
a the catch-22 problem
the
in
Tenant
between
participation
of
residents,
a partnership
1.
management
and
throt..th
reforms
their
role in resource
al 1 ocat i on.
tallk about
resident
for
either
and
pursue.
tenant
to
input,
in
of
management
sixties,
when
and
housing
needs,
organizations
the
is
the
fallen
into
being closely
and
i
general
therefore
used
many
residents
to
conflict
selectinq
or
do not
tenant
exccliU sively
avoid
assist
through
with
strategies
of
of
working
i denti. i-fed
bei ng c. osel y
residents
any
will
method
be
used,
i cs.
the tenant
to justify
support
organization
the
resident
interests
model
and therefore
the first category,
getS
the
residents
cf
Since
of
interests
intere.ts
local
their
is
the
how
advocate
The other
of
resident
categories.
with
a cooperative
i ncludinq confrontation tact
a
two political
their
local
s pref erred.
pursui n g
In
to
to
formed
experience
identified
akin
having solid
over
residents
wide organization
define
between
or assessed.
public housing
city
has
management
together
a
are allocated
to
over
mal.::ing and
of
difficult
more
being able to exercise control
resources
One
decision
a lot
has been
rather than control
a distinction to be made
is
has been
has been
There
chapters
When
date
program.
management
- or
but that
management
evidence
with.
th
there
the Receiver/Administrator
Experience
participation
late
empowerment
tenants of
encouraging
local
recei vershi p
During
organization
management
or
and
decisions which
are adversely affected
its
a collaberative
the Authori ty
to advocate
leaders elect
mechani sm,
by.
to
work
the need to
can become restrictive
resident
often
interests
.in
and
perhaps,
even
for instance,
Take
the
cause
of
Authority
a
can
specific
be
tactics
basic goals aS a group.
an issue
in
which a BHA poli.cy
resident
problem.
persuaded to modify
organization's
resident
issue
compromise their
options
to
its
use
Confrontation
diminished.
strategy
to
is
the
position,
the
position on
a
less
the resident group because the
cooperating
Unless
confrontational
to force the BHA to compromise its
is
is
the
desireable
importance
with BHA staff outweighs the potential
of
gains of
being adversarial.
There are of
to
organization,
of
its
establishes
leaders
its
is
however,
to being
can be
of
the
influenced by
the
which
closely with BHA staff
and policy
over time,
to represent residents who disaqreed
leadership
ideas.
protect themselves,
group
discouraged
s
authority'
staff
representatives
people
practices
of
review
tends
of
and typically,
credibility,
some of
decisionmaking activities
democratic
gro.U p
tenants
to
thei r
often
actively
The
housing
issues.
prefer
rather
wi th
these leaders began to
and
of
mak::ers
stopped feeling
obl::;
i gated
avoid
the
The past tendency of BHA tenant
that those representatives,
To
able
representative
characteristics
and the manner in
priorities.
leaders who worked
benefits
visa the
The internal
organization.
resident
role
important
closely with management,
work
tenant
course,
than
to
wor.-
large
wiith
groups
of
treat resident leaders with enormous
irrespective
of the
the organization.
internal.
deci si. onmaki ng
The combination
of
these
f actors
can
housing
services
for
the
most
For
control
over
to
part,
in
public
not
shared
have
decisions with
discussion.
their
resident
matters but
interest
to
the
decisionmaking,
are
seek
less willing
tenants
in
input
and
however,
is
out
to
the
agreement
management
Resident
Many BHA managers tend to
local
controlling
managers
the process of
common.
on
over
BHA residents.
formerly spells out
service under
participation
input
field
influence
unless there has been a contractual
or
fairly
of
of
management
understanding which
functions
1lac::
a
a maiority
onsite
organizations
or
up
add
resident
provide
decision
a
making
p r 0 c e ss.
This
is
in
part,
management
decision is
review and
analysis
incorporate
decision
and
atnd
it
is
controls
most
influence
indicator
over
of
management
agreement
In
the
is
between
management
there
is
a
of
to
the role
activities
sense that
local
to
because
needs have
the
control
one
over
formal
and
good
local
informal
and management.
resident participation
of
the BHA during
and
both.,
BHA
of
histories
or
the
Thus,
organization
well.
as
or manpower
outcome.
look.::
only
of a given
required
often,
resident
the resident
looking at
field
the final
a
Decisions must
the Authority's
level
activities
money,
that
the purse strings,
is
when
includes not
the results
followup
decisions entail
that
follow.
for
some
surprising
fact,
the process
accountability
not
the
actions must
typically
Most management
to
made,
but
clear
due
the
in
the
receivership,
level
of
BHA's
capital
resources
management
dial
to
what
notion
Og ue.
in
uncertainty
have
the minds of
variables
is
There
resident
in
the
some genuine
both
residents
"empowerment"
constitutes
of
become
in
confusi on
or
and BHA staff
when
participation
tenant-
contrasted
the
local
as
with
decision
making process.
Resident relocation agreements,
responsibilities
of
manager
process of
in
the
redevelopment
hand,
BHA
effort.
remains
role
when
of
residents
and
in
involved,
a
sub plan,
and
between
managers
specific
goal.
both
since
the
part
for
influential,
forces
major
even
towards
of
resident
in
an
in
many
groups
the the
receivership
i mproved
if
housing
are
require
cooperation
to
ach i eve
managers
BHA
become active,
local
management
for
is
ability
also
the
beem
to
an
create
and even
program.
those projects
exi sts,
loose their
It
fairly
agreement
there has
to
The
informal
still
services.
Orient
are
approaching,
residents
as at
to
because resources
order
housing code violations
higher
such
are
receivership,
of
development
organizations
iSSues
tenants
goals, but
tasks).
and
a
on the other
some marketing
examples
agreement
and
opportunities
the end
agreement,
management
Undoubtably,
on
by
the
the
during
in setting
marketing
their
these two
formal
evident
attempt
(except
and
families
housing
residents performed
distinguishable
a re
relocating
responsible for
define the
organization
involves resident participation
Heights,
where
resident
The fair
perspective tenants,
With
the
for ex:ample,
the stakes
to
w ork
clear that
the
subject
of
empowerment
In
resident
are
with
important
role
which
tenants
which
model
credibility
and
democratically
fundamental
a
to
the
people expect
tools
ongoing
potential
must
rely
large
if
to
of
work
with
Within
important
a
strategies
upon to
Decisions must
a
making
needs
model.
there are
power.
survival
the
responsive
collaberative
and
are aware of
makI--ing
organization
and
in
maintain
be made
membership
openly
base
the organization
is
for
BHA's
to
are
achieve
goals.
The
management
re-Forms
influence
control
capaci ty
of
housinq
depend
over
resident groups
tenants depends
their
membership
interests of
Policv Initiatives
also
org.ani zati onal
revi tal
houSing
to
upon
residents
services.
In
turn,
address the needs of
the
Tenant
and that
of
in
field
to
the
publ i c
representative capacity of
leaders must be
accountable
turn best assures that
the
residents are carefully integrated within B3HA's
Field management
BHA
sustaininq
upon the ability
their
resident organizations.
to
tenant
investment
in
however,
the resident
their
and
play
BHA staff
within
have an
because they
tenants
more
Typically,
col laberative
its
groups,
services
residents.
BHA
most BHA managers
resident
management
development
inseparable.
general,
working
organizational
iz at ion.
practices.
to Assist Housing Management:
made
a
range
of
-fforts
to
policies to assist the Authori ty'
Some
of
these
policies
are
tailor
its
1.onq term
aimed
at
upgrading tenant
population
services,
who
lease
live
in
enforcement.
suggested
that
direction
as
public
an
eviction
process
Tenant
housing
poor
which
selection
records
a
practices
it
because of
hcutsing
tenant
instituted
applied
on
applicants
inti
1
for
fixed
the
Sel ecti on.,
Assignment
who
are
than unemployed
for
boost when
to
the
cause
BHA's
that
a
modified
applicants
accepted
track
to
in
housing ,
tenant
selection
tenant
was
as a renter.
policy
apartments
applicants
public
perspective
record
to
determine
Those
prior
has been the
Authority
reaches 50'.4
res-i dent s
new
affecting
public
Authority'
s
recently
Income
pol icy.
working households
differently
than
those
incomes.
househol ds
limits
also
the Authority intends to treat
have
a
legislature
and tenancy.
controversial
selection
charting
crimes.
were
to
enhance
reforms have
speeding up
housing
was rare
a poor
the
for
serious
contrast
to
major
a
income-tiering or Broad Range of
brief,
ratji
procedure
payment
the most
got
petitioned
are no longer
major
where
'erhaps
who
rent
policy
about
example,
public
are
the
agency.
practices
of
in
is
rejected
for
involving
history
with
In
emergency
screening
their
serious
modi-Fy
to
Others
is
successfully
establish
include
housing.
Authoritv
low rent
Authority
intended
these major
Lease enforcement,the
are
Combined,
the
a
others
wide
percentage
of
working
according to the Authority's Tenant
and Transfer
employed will
applicants.
Plan,
be admitted at
The cLrrent
acceptance into state or
ho t..tsiing
public
federal
a
hi gher
maximum income
devel. opments
range
$12,180 for a single person to
from
family of 8 persons.
and a half
poorest
who
are
families and individuals who have
no
are
the
alternatives
As a public housing resource,
BHA has in effect elected to limit at least half of its
13,000 units to the working poor,
It
a
income limits).
most affected by this policy
other than make-shift shelter.
the
for
(Applicants may have assets of up to 1
times of the maximum
Those
$21,750
is
ironic
would
that many
through the prolonged efforts
'There
is
as an
is
until
of the city's
unit.
poorest,
Only
had the
been brought to public scrutiny.
Authority
there
poor.
longtime residents of public housing,
be less able to compete for a BHA
today
fate
rather than to all
just cause for
insitution
an
real,
concern about the
which serves only
the
Authority's
but
poorest;
equal11y compelling need to fill
such
a
role
accessible means of providing affordable shelter
to the needy household can be demonstrated.
Some
policy
have
of
the rationale for the Broad Ran4e
stems from the fact that public housing
been areas of extreme poverty
ensuing social
few
if
any
registrati
conclusions
community employment
can
be
for assisting poor communities.
the
economic opportunities are
Pol icy
is
to have any basis as
social fabric of a local
A1
drawn.
initiatives
ingredients
enhanci ngq
communities
unemployment.
and
Income
Income
The
conditions are common subjects of debate,
insightful
on,
and
educational
Broad
of
but
Voter
and expanded
all
i mportant
Thus,
if
the
a
means
oif
development.,
then
mployment and education,
must
be
incorporated
training
and
the
Authority' s
into
placement
assistance
management
and
communi ty priorities.
In weighing the merits of
the
management needs of
little
evidence
rise..
its
such
that
more
low rent,
rental
for
a
There
value
evidence
pcor
education
housing
and
be
reduced in
public
segregated
by
income
that
years,
their
are
its
approximate
the
little
to
specific
many
neighbors
are
often
the
less
family
than
male
in
their
public
housiing
poverty
will
a factor
is
be
in
public
high,
when
scarce.
end
development
and
wage
difficult
communi ties
lowest
rising
househoId
more
housing
However,
unemployment,
of
unemployment
are
at
management
The
that
its
of
is
poverty
resources
on
benefits
half
of
costs seem to be
employment
when
Ihunned
operate
never
head
that
where
linkages
1cale. For
pay
resources.
reduced.
Neighborhood
economically
poor households
related
on average
seriously
and
are
female,
indications
developments
establish
to
in elderly housing.
employment
incomes,
are
educational
rents
There
which
single
whose
significantly
paying
costs
of
not
costs
management
minimum
the unit.
social
counterpart,
is
increased
a
as illustrated
are
earners,
that
with
there
poor households necessarily cause
there
percentages
developments,
could
with
Income Policy
cause
may be some
of
of
that
families
Authority
agency
costs to rise,
will
the
capable
market
local
often the case,
housing
households
many
poor
that
income.
the Broad
served
of
become
the
poverty
projects
as
to
were
convenient
sc:apegoats
for
AuLtthority
seems
economic
intereaction
larger
the
decline.
area
to believe
Through
that
opportunities
between
community
are
income
public
mixing,
the
social
and
for
hOuSing residents
increased,
or
and
perhaps
less
limited.
E29Etiye
Services and Commun ity
Having
management
these
strategy,
elements
field
of
described
management
Services
areas
ts
process
of
Author-ity
prcess
resident
emj:pfl. oyement
and
many
from
responsi bi 1 i ties.
of
BHA
and
In
light
poor,
to its
its
of
servi ce.
of
between
In
services,
the
the
the
commt..tnity resources to
of
BHA's
evolving
facilitating
residents
is
not
administrative
Residents,
program
indications
linkages
its
in
quality
to develop,
resources.
community
participant
services
the working
the
the
Supportive
housi nQ
services are
the delivery
services
the the
the few
to acknowledge
became an active
for
upOn
of
The Authority's
oriented
population.
housing
which holds
the functions
operate a public
efforts
linking
the AuthoritV's
organizations are expected
restructuring
of
is
is probably one of
efforts
management
that
and policies.
communitv
the Authoritv's
and
depend largely
to basically
These
i
program
program,
and
features of
there is one common thread
where resident
direct
the major
together
BHA's personnel
Resources
however
are
its
image
as
educational
and
that
di fferent
or
operati ng
the
exc 1 usi ve
f c u..t
For
obviOUS reason=-,
therefore,
it
is
the resident=
of
p.bli
c
housing
HU..thor i ty' s
As
is
of
coordinating
who have to guide the process
s upportive
the case of
has not
services
efforts
been
assist
its
viable
the process
physical
housing
supportive
BHA's
are useful
indicators
for
the
endeavor.
effort,
structure.
necessary
are
mak1::ing
services to public
of
easy to
however
blocks
successful lV
the
of
what
to
Authority
restoration
efforts
with
revitalization.
social
In
summary,
efforts
try
any service oriented
the delivery
residents
building
services program a
of
the general
such
quality
the
which
The
strides
poor
housing conditions
huge
sums
of
One
last
city
for
which
communities.
Through
to
community
linkages
efforts
to
improve
housing
to
get
assistance
in
capital
an
order
which the BHA
improve the
are
the ability
education,
to better
attracting
pursued
and
of
ties
and
has also
led
in
individttals
job training
pursue their
of
housing
neighborhood
the Authority
with
quantity
public
to
developing
services,
has
quality
available
its
improvements.
and
repairs
to
deci si on
addressing
have also depended upon
ingredient
services
in
to
performance.
and
has made
in
which
trying
in
participation
operationalf
has been to
dedication
resident
the Authority
monies
to
management,
The Authority is
inputs.
of
increased
making and
the Authority
as decentralized
incorporate "bottom up"
enhance
of
its management capacity has been
to reestablish
strategies,
approach
or
goals.
pu.blic
employment
CHFAPTER VIII
Rev iewing E's
For
Managemet Performance
the Boston
has been an
Housing Authority,
important
period of
Receiver/Administrator's
as the need,
In
moving
the
those
in
Authority
be
progress
system
their
which
improvi ng
affected
management
its
is
it
importantly,
itself
real
housing
lead
the
of
the
used
to
safeguard
will
In
which
the
also serve the
strategies
addition
to day to
have and
by housing code violations
of
appropri ate
time to design
homes
will
closure
concern that
performance.
improvements,
what
how
progress
for
These measures
more
system,
mandates?
that can be
has begun.
by affording
will
continue to
be relieved
of
shoddy conditions.
Performance
In
Standards:
general,
management
there are two
performance
monitoring
most
enhanced.
housing
there
The
capacity has been
continued
prepares
developed
day operating
1e
its
receivership,
measures
for
fulfilling
the
As
to the
recovery.
extend as
achieve and most
relate
receivership
reforms do not
towards a decentralized
efforts
court
but management
Authoritv
Authority
institutional
management
far
did
court
and
agreed
standards
improving the
upon measures
maintenance
work
evidence
of
increased
physical
i mprovements,
order
approaches
local
for
to
the
management
structuring
purpose
program.
include vacancy turnaround
turnaround
public
a
time,
rent
and
property
safety
decrease
in
of
The
t i me,
collection,
wasteful
security,
t..utility
consumption
some
and
respects,
performance
are
improved
measures
to
and materials
record
as
have
examples of
common
contrast
financial
standard
These
most
better
quantitative
quantitative
delivery
of
of
long term
that
its
housing
measures
outcome,
or
collective
construct
will
work.
of
There
most
compel1ing
that
coordination
broad
the
are
code
is
is
to
because
for
the
the
configuration
with
the
Strides
of
in
less
how
can begin.
of
share.
elimination
of
Living
It
un its
the
Uni t
financial
must be addressed
a range
well
measureable
there are
an occupied
the
clerical
alike
Their
start;
final
accountabi 1 i ty
and staff
the total
program
and
to decentralize
managerial
an initial
resident
for
measures of
examples
there
as other,
laborers,
violations.
prepare
unfold
to do
residents
example
improvement
Authority
pol i cy
other
In
The Authority,
and
are ultimately
problems that
based,
is
the
conditions.
service.
contracts
which
housing
Inspection Program
the
decentralized
standards
A uthority' s
and
of
are numerous
performance
which
everything
quality,
craftspeople
the
The
has
bargaining
workers,
goal
are
housing services,
day to day services,
structure
implicit
values and
improved
has a management
an
In
well.
more quantitative efforts are achieved.
exaample,
is
keeping
measures of
less tangible,
controls.
before
is
a
time for
improvements
departmental
inputs
required.
Other
indicators
manaqement
such
as efforts
objectives
to build
are
akin
to
neighborhood
performance
ties,
and
to
the city's
improve
Services.
upon
who
constituent
tensions
the
most
indicator
but
Ultimately,
the
management
skills.
empl.oyment
and
goals
the
must
of
the
scarce
process
interacting
of
of
that
and
that
will
Authority's
reflect
Fair
the working
Authority's
Supportive
poor
tenant
services must
provided.
performance
by the Authority
using
progress
Basic
and
housing
functions
management
services from.
are
have
of
lend
has
are
and as such,
from which
BHA
measures
these indicators
references
The
standards
reasonable
and
these
itself
management
past
responsive,
base
four
l ine
qualitative
the following
achievable objectives.
to
these standards
they are critical
for
widely\
potent support
linked to
to build more
identified
been
their
which the BHA has made over
performance
which
its
of
housing
measures
treatment
policy;
performance
of
stability
enforcement
is perhaps
and residents.
performance
preferential
program
Authority's
blending,
Reoccupancy
Quantitative
years.
the
rigorous
efficiently
the
is
capacity and
Housing Subplans;
for
the
managers
clashes between
illustrate
adopted
field
it
occassional
community,
only a few basic elements
the hands of
biggest
and
the management
of
of
BPS's
impact
discrimination
racial
Creating a sense
crucial
qualities,
be
Ending
and trash
have dramatic
housing;
are other objectives which
to address.
calis
transportation
live in public
group).
has
in
fire,
Boston schools will
(Better
children
rests
police,
goals
Both
the
and the citv-wide resident organi zation
plaintiffs
that these goals must be met.
agreement
the
need
to
be ciutious and not
performance
quality.
influence of
time and money,
be either
In
There is,
interchange
addition,
there
are
however,
goals
is
i. n
the
with
woeful
of which there alsways seems to
too much of one and not enough of the other.
BHA Performance Goals:
If
the
adheres
BHA
to
its
current
through their newly formed citywide organization,
residents
have endorsed,
it
will
continue to build upon the
of court receivership by increasing occupancy,
in
1984)
and maintaining a high level
(95%. by December
workorder
1984);
December
(101
100% of
1984),
to
its
of
all
collection,
maintenance
workorders
units,
progress
(by 399 units
of rent
by improving
inspections,
and by inspecting
by
which
goals,
(11,500
through
performed),
occupied units
determine living and
vacant
Unit
conditions.
A commitment
and
repairs
employees,
income
operating
otherwise
development
has set for
mi si,
joturney to
the
functions
In
fruition.
Major
sufficient
substantial
funds for
will
require
and aggressive performance from central
qualitative
opti
to continue to seek::
short,
term future
will
of the Authority
however,
and
expanded
never
reach
the present goals which the Authority
seem enlightened and
itself,
full
long
office
can easily
recovery., which
pale
in
the
has just
attainable.
That
light
long
bare ly
of
its
begqun..
Findings:
In
the short
space of a report,
(albeit lengthy),
i.t is
not possible
to
and remaining
tasks which
however,
are,
which
some major
deserve
performance
**The
adequately
attention
of
results.
buildings,
apartments
BHA's
and
in
serious
gap
An
equal
if
inequity
any
exists
physical
housing
between
have
There
seen a
remains,
improvements
which
residents and
newcomers.
developments where
has
reaped
have received
improvements
between
restoration
which
optimism.
and social
has
developments
grounds
en .joyed by long time public
management
the physical
community
There
receivership:
to restore
family
the overall
Family developments
resurgence
a
at
it.
and accomplishment
concern
looking
achi evements
has before
during
ongoing effort
signficiant
however
areas of
the Authority
of
overall
the Authority
in
character
visible
address the
occurred
and
are
little,
the
need
exi. sts.
In
of
both
allocation
including
that
the
and
what
and
there
and
sLfficient
context.
From
the
capacity.
capital
repairs,
or
Unit
Inspection
effort.
a degree
is
administrative
management
personnel
an
with
fashion a process
a policy
Living
role, residents will
management
a
of
such
While there remains
management
field
The
example of
model,
must
management
**
mana gement
=uch
links
establishment
one concrete
how,
the Authority
occupied t..tnits.
service
is
examples,
of
play
program
supports from
none.
uncertainty
about
decentralized
evidence
to
the perspective
supervisors, there
The
moti vati on
central
Program
virturally
in the
office
to
of
is
support
of
most
enhanced
managment
have made
the
be inef i ts
of
ocal
managemeint
One important accomplishment
**
improved
managment
relatively
reliable
on
its
the
re+ orms f easi bI e.
information
in
Unit
potentially
system
This base will
Inspection program
efforts
to
remaining
housing code violations.
more
systematically
continues to function
professional
contri buti ons
between
identify
supportive relationship
operations
has
respect
been
data
be broadened with
and
improved work order system,
**The
which
providing the BHA with base line
managment systems.
Living
of the BHA has been its
will,
wit h
the
aid the Authority in
and
between
eliminate
field
properly;
and central
managers
and recognition for
and headaches but efforts
to
its
the
build
feel
local
supports
managers themselves has been fragmented.
The
union
status
of
the entire
office
laborers,
may need to be openly assessed in
opt ions.
The
role of the Housing Manager
occupational
constraints
dec:i si on-making
a Uttonomy
of
staff,
ex..cluding
order
goes
beyond
a job description
must be treated
as
to compare
a
and
the
local
l onj
term
priority.
**There
about
are serious policy questions yet to be resolved
the tenant selection program,
tenant employment practices,
of
plans
and
establishing
lease,
in
tenants
court
fair
more attention
a
new lease for
and of
itself,
will
occupied unit repairs,
housing plans and or lack
should
be
directed
postreceivership
serve
uses.
The
as a weathervane
for
to determine what benefits they have
receivership.
towards
derived
from
**Much
of
the social
and physical
progress
associated
wi th
receivership
has occurred
time.
The
has to prepare a comprehensive
an
and
outlook,
if
physical
Of
is
Authority
Now
to
chart a different
in
The hard
servicing
only
restore
its
its
and
pol. i ti
of
cal
iAuthori ty
hot..using
of
court
approach,
its
social
receivership,
mana gers
for
has really
its
just
vacant
public
low-rent
to public
be sensitive
to
the
housing
occ upi ed
enhance the
resi
the
dents,
housing
the needs
BHA has to
its
assist
housing
and
management
also
es must
properties,
f
has
begun.
but
Polici
and
staf
beyond the crisis
units
it,
which
BHA
housing communities,
accountability
of
maximum
increase
fami. ies.
long
well
The
time public
residents.
Resi dents
the
goals'
guide
course
bui ldings.
eliqible
must
for
of moving
BHA communities
nt..tmber
into
work
the midst
of
apartments
over
valleys
its family developments
opportunity
communities.
but
accomplishments
the
residents
being
to systematically
stablization of
created
not
be,
peaks and
development.
the major
the
stage
need
in
and
BHA
must
share
must bear
operating
compliance with
in
the
process of
the major
policies
the State's
burden
which
for
bring all.
sanitary
revi tal
i zat i on
e.s.tabli sh i ng
BHA apartments
code.
CHAPTER
IX
Look ing Towa2rds
Post
Some
Recommendations:
Issues
and
According
most
in
viabili.ty
of
properties.
racially
are
a
manner
the
agency
court
receivership,
and
was
housing
especially
and
is
There
for
long
political
con1tr ol
courts
hall.
of
over
to
control .
protect
public
homes
their
The
Al. l
present
is
Structure
of
of
their
and
housing
BHA
to
its
address
strong
can
sanitary.,
communities.
off
staff
and
futlly
parti ci pate
of
the
tenant
from
these tactics
to
icials
pushing
membership,
auspices
the
of
been
enough
in
Authority.
petitioning
have
with
and
assurances
dents have been
Governors
tenants
concerns
and
governance
resi
aimed
influence
city
at
to
communities.
configuration
important
services
BHA
the
homes
residents
of
how
safeguard
courts,
housing
day
an
same
Authority from the
remove the
empowering
of
Board
the
term
of
by promoting
these
k i nds ran g i ng
BHA's
that
determining
twentyyears
all
maintenance
trends
restore and
of
long
efforts.
institutional
the past
reF- orms
physical
share
in
term goal
and
O-ver
housing
from the
the
concerned
conditions
support
the
for
also
interested
decent
the
residents
established which
safe
and
to
its operations and
facilitates
occupancy
open
the
Receiver/Administrator
that
is
segregated
Public
quality
of
of the
task
The court
desegregation
the
declaration
the Authority's ability to direct
resources
be
the
essential
restore
its
to
Receivership
of
first
to
step
residents.
BHA's
for
reStori
management
ng
With decentralized
the
i
nput
management
into
empowered
the
to
direct
overa 1l
local
managers
day to day operations.
process
management
political
operations,
of
stabilizing
programs
patronage
or
is
to
have
been
The next step
in
the
configuration
of
prevent
the
of
sponsorship,
once
return
receivership
is
ended .
the
In
general,
BHA
and public
ish
establ
a
progress
order
mechanism
peopLe,
the Authority
to
city's
as a
poorest
be
subj ect
patronage
and
insensitive
members
For
or
to
in
professional
influences.
is
and
units
within
pending if
the
a r ea s,
the
to
in
servi ces.
homeless.
In
income
.lw
its
obligation
can
Nor
of
tampering
the
EHA
pol itical
by
Governing
project,
responsiblity
not become subject
Without
the Authority
it
even completing
is
no secret
is
to bring
the state's
to
the
that
its
of
nonBHA's
a major
buildings
sanitation
code
decade.
linkages and community
developments
virtually
Authority
of
is
efforts
for
compromises
can
compliance with
Neighborhood
housing
the
management
Inspection
into
the
particular,
and
effort
loose sight
political
maintenance
Unit
and
resource
It
the mayor.
managers,
Living
sustaining
housinI-Q
the court,
same.
the BHA' s basic
can not
employees
Board
for
have Upgraded
cont i nue
the
goals of
housing tenants are the
firm
that
to
the post receivership
continue to be
non-ex:istent,
has barely moved
services to public
fragile
and
despite the need.
beyond
the skeletal
in
some
To date,
stages of
ialting
the
in
even
years
light
deterioration
successful
neglect,
of
its
vaca--incy rehab
many family
properties,
program.
After
developmentsa
suffering from the blight.
In
its
its
of
extreme
of
still
widespread
family
a
the Authority
the next years,
projects
solid
must not
up to -full occupancy but
partnership
with
bring
only
also enter
residents
amd
into
their
organization(s).
With
the physical
predevelopment
the
renewal
resident
to
to
not
goals
are
BHA
residents
t i me
(even
out
its
with
shaken
out by
worded
every
eligible
Every effort
must
its
resident
for
from
apartments,
carefully
in
current
poorest
basic prerequisites
benefit
often
results
housing for
shut
and
is
a new apartment.)
preserve public
populace and
two
forces,
there has beem mixed
getting
made
buildings
housing commun ity
relocation./displacement
guarantees,
of
applicants.
These
assuring
the
be
that
1 ong
s
recent
Author i ty'
g ains
By the same tokl:en,
to
the
slow progress
desegregation
expressed
about
- uthority
mandates
Broad
for
of
public
in
must
with
unli
protecting
ke those
the rights
housing,
its
serious regard
in
that
relate
its
racial
which
have
There
of
all
be they minority
because public
the city's
weight
concerns
Income Range Policy.
However,
force
are real
the BHA has made
not
its
income applicants.
prominent
which
efforts;
simple strategies
applicants
there
rental
policy
for how
and
those
are no
eligible
or
housing
housing
been
is
fixed
such a
market,
the
administrative
mandates
may
impact
the housing
There
of
oAt
receivership,
longer.
BHA's
pitfalls
in
statutory,
its
significantly
for
level
organization(s).
As
difficult
to
and
have to assure that
ty
was
resident
relegated to
Rather
post
than
receivership
concerns
oriented
will
as
addressed
be it
receivership,
of
post
post
the
receivership
receivership;
for residents or
their
the governing board,
it is
as
faced
in
in
of
concern,
tenants must
Without
that
of
the
same boat
their
that
influence
tasks,
less
a
which
itself
or soon
factor
there are
equally
important
perhaps this
many
prepares
next year
clearly
the
other,
directed,
is
between
vote.
the
BHA
balance
representatives
themselves
illustrate
and operationally
a
is
body.
are addressed.
continue to list
i.ssues
other
level
priorities
a minority
ma.:ing
local
be
separation
options which
board members
inherent
must
strict
necessary
the
residents
may find
Board
has
development
collaberative
vote,
Governing
policy
the
members of
their
ignore any
means or
be a
not a panacea
maintain
confrontational
former
there must
from
is
electoral
and
participation
structure,
once
BHA's past experience
administrative
the Board
mai ori
then
caution,
can not
accountability
through
If
which,
governance
Political
mechanism.
Tenant
a
governing
enhanced,
Authority's
to
general.
the Authority
character.
representative
of
in
are serious concerns about
court
reason
market,
will
for
thereafter.
of
list
both
have
the
policy
to
be
end
of
The timing
than the conditons of
instittutional
goal
s
and
.- '-.ictyv--s
which
deserve
rc.evitalization e+fortE
attenti~on
cat this
JUncture o+
BFIA's
Cc-nc 1 usi on
goals of
The
the Boston
Housing
character.
of
the
its
begun;
of
physical
blueprint
a
for
drafted.
Like
the
distance
between
It
of
structure
is
the
of
the
is
of
of
abated:
perception
tested over
support
for
from
been
that
former
field
has
and
the
the configuration
well
management
managers
just
however,
stage
program is a
and
conceived
services.
There
residents that
manaQement
the
have
strategy
systems
Structured
establ ished,
perform ance
have been proposed,
emphasize on
An
has
if
not,
the value of
managers has emerged
and
fully
training
and
and
seem
to be
received.
continues
efforts
management
with
budgeting
have,
have
time.
There
linked
to
exciting.
has been rejected,
measures
accountability
well
Authority
operations
BHA's
albeit
report
routine
BHA's
patronage
information
staff
for
of
groundbreaking
this
providing
ccnsequences of
been
important
such magnitude,
precarious,
finding
for
a general
wor st
area
rebuilding
reprograming
a decentralized management
arrangement
is
and social
any project
been
completed
capacity
the
mandate.
work
The
and
political
and in
the progress has been
confidence
realign
and
that process has begun
management
restoring
to significantly
organizational
Authority's
Clearly,
field
fulfill
receivership were
indeed,
be
to be more
the centralized
is
to
a start,
been
a
need
for
efficiently
planning
while central
decentralized
and
process.
strategically
Project
departmental
supportive to the field
effort.
based
supports
still.
there
is
central
a
missing
planning efforts,
Again,
apartment
There
are
recorded,
pipe
their
less
role which
effort
which
that
have been
resources
have not
of need only,
financing,
never
nor priority,
location
organization,
for
put
be
all
factors
It
that
to many
has
al ways
allocated
in
was
into the redevelopment
on
matter.
and neighborhood,
were
been
since receivership
counterparts.
could
upgrading
mentioned.
are like lux'ury condominums compared
that
and
than others.
money plays in
more resolved,
non--redevelopment
cl.kear
field
many code violations
Places
lines
the
and building conditions must be
many,
declared.
between
some of more concern
the central
EHA's
even
element
been
the
basis
Conditions of
resident
the
of
acti vi sm and
actual
allocation
Ir c- -e s s
there is
If
f :ixup
t
sI-houl d
on
necessity.
a
billion
and
will
is
the
price
code
the
tag
balance
violations
parki. ng
of
ition
The
on
is
the
near,
Receiver
the
alone.
improvements,
the money
BHA1
representativ.es
regi strati
that
getting
cnar
publ ic
voter
require
dollar
landscaping,
i ip r
aid
It
f in i sh
it
everv substandard hi-ausin
continue to lean on its
moderni zati
of
a super priority,
What
recreation
a
fr
basic
qt.arter
spoke::e of,
about
and
to
the
energy
czvem en t3
In
conclusion,
in
lool.k:ing at
the Authority'Cs management
system we found that with dedicated
cou::1ed with
approach
to
major
local
sources of
f iel d
staff
f i nanci al
management,
and
tenant
assi stance
the
effort,
and a new
A..ithor- i ty
has
managed
to
raise
physically
and
For
the
itself
out
socially
city
of
a
sinking
was enormous;
of
Boston,
its
hole.
perhaps
public
its
almost
quality of
are
provided
to
indicator
of
isolation
from
The
public
the
also
city's
private
income
communities,
supports
family
the
Authority
continue
its
other
to
it
be
cuable.
program has
and
impacts
city services
is
doing
an
to
that
important
bridge
its
mainstream.
institutions
or
stock
is
political
must
rental
housing communities
how well
BHA
The
incal
housing
represented a major portion of
every neighborhood.
The damage.,
to
efforts
their
to
hold
obligations
provide
jobs
the
to
and
low
educational
services to the Authority's
elderly
and
look
towards
the
projects.
In
future,
the
continued
the
of
resolution
its
strenqthening
its
abandoned
housing
must
of
such
i ssues
city-wide
supply
e::panding
Authority
housing,
is
initiative
a
and
organization
tenant
family
and
building
as
perfect
thinkiI-
(I
point
to
an
start
from).
Finall,
that
divided
Authority
former
residents
the
can
never
dedication
has successfully
conditions
then
there
be the
of
BHA can
turn
as
a
image
wel.1
BHA's
eliminated
and massive numbers
the
return
its
public
full
of
housing
institution
the
patronage
employees.
its
attention
of
When
deplorable
code
to
socil
violations,
regaining
that
the
served
its
its
FOO TNOTES
1.
Housing
ALuthority
Bauer,
"Boston
Grenelle
Hunter
Receivership", MIT Department of Urban Studies, (1931),
p.
2.
Robert Kolodny.
Public
Housing
Development and
EIlor~ing New Strategies for Improving
Policy
Office of
HUD
Management,
Research, (1979), p. 317
Lewis
Boston
Semi-Annual Report
H.
Spence, Second
Suffolk
Housing
Receivership to the
Court.
BHA,
(1931),
of
the
Super i or
p.5
4.
Bauer, p.5
5.
Bauer,
p..5
6.
Bauer,
p.6
7.
From the Suffolk Superior Court Findings in the Per
action no. 17222, July 25, 1979), p- 2 5- 2
case., (civil
9
p.7
3.
Bauer.
9.
Citizen's Housing and Planning Association, (CHAFA),The
for Survival 1.969StrLgle
Housing Agthoritv:
Boston
CHAPA, (197.), p.I-2
1._73
10.
Richard
Cherry,
"Boston
Housing
HUuthority
Trims
Income
Boosts Rent
on Vacant Units;
Turnaround
Time
System",
Communications
the Use of Facsimile
Through
Trends in Housi ing Management,* National Associ ation of
Housing Organizations,
p. IV-,8
11.
CHAPA,
1.2.
CHAPA, p.V-
I 13.
CHAPA, p .v-3
14.
Bauer,
15.
Bauer, p.8
16.
Bauer,
p.7
17.
Bauer,
p.8
13..
Bauer,
p.
19.
Bauer , p. 9
p. 7
9
(1977),
p.57-58
FOOTNOTES,
20.
The
"The
BHA,
(continued)
Governing
First
(194793)
Board
of
the Boston
Housing
Authority,
Eighteen Months of the Consent Decree",
, p.1
part
I, p. 9
21.
The Governing Board, part
22.
Bauer, p.9
23.
The Governing Board, part
I, p.1
24.
The Governing Board, part
I, p.9
25.
The Governing Board, part
I, pgs.7-8
26.
Bauer,
27.
BHA Policy Statement,
28.
The Boston Housing Authgrity State of the Propert*y
Regort.L Planning and Redevelop-ment, BHA,
(1979),
appendix. A
29.
Lewis H. Spence, The First Semi-Annual Rega!rt of the
BHA Receivership to the Sufif
g011.SuPe ior Court,
"Operations",
(1980),
p.1
370.
Spence,
p. 10
First
circulated
Sem.i-Annual
in
Report..._._,
1983-84
"Introduction"
p. 4
31..
Interview with Jack Foley, manager at (aJest Broadway
BHA family development, May 10, 1984
32.
Lewis Harry Spence, comments made during
for BHA visitors
on January 24, 1984
33.
Interview with Terry Lane,
1984
a presentation
ABT AssociatesJanuary
4,
I
and
BI IBL IOGRAPHY
INTER'VIEWS
THE BOSTON HOUSING AUTHORITY
A n n .a 1
(BHA:):
R epEr:t s
The BHA AnnUal
Report
The BHA annual
Report 1975-1976
The First
Superior
The
Semi-Annual Report of the BHA to the
Court, February 1s 198-A gyst
1980
Second Semi-Annual
Superior
1973--19-74
Court,,
Report
Lgggst
of
the BHA to
198Q-February
The Fourth Semi-Annual Report of the BHA
Superior Court
July 1981-December 1981
Semi-Annual Report of the BHA
CourtL January 198_2-June 1982
Si>xth Semi-Annual Report of the BHA to
Courts,
July
1982-December
the Suffolk
1'81
The Third Semi-Annual Report of the BHA to
Superior CourtaL FebrUary 1981--June 1981
The Fifth
Superior
Suffolk
the Suffolk
to
the Suffolk
to the Suffolk
the Suffolk
Superior
1982
Seventh Semi-Annual Report of the BHA to the
3ut..peri. or CourtsL Janiary 1983-June 1983
Eighth Semi-Annual Report of the BHA to the
Courts, July
1983-December 1983
Suffolk
Suffolk
Superior
INTERNAL REPORT/MEMOS
Budget:
"Analysis
of
September
30,
Project-Based
"BHA
Handbook
June
1982
"Changes in
June 1983
Budgeting
FY
1984",
(Jeff
Lines),
1983
for Project
the Budget(s)
"Project-Based Budgeting
(Olivia
Implementation",
Based
Budgeting,
(department),
Since Receivership",
at the BHA: From Pilot
May 22., 1981
Golden),
"Resident Training Program in
(department ) , May-August 1982
Project
Based
(Jeff
Lines),
to Full
Budgeting",
(continued)
BIBLIOGRAPHY
Records:
Court
Memorandum
of
Recorded
Observations
by Judge Paul
Garri tv
Commonwealth Development During View on April 11,
D Street During View on April 19, 1979
Mission Hill
Extension During View on May 8,
1979
Main During View on April 19, 1979
Mission Hill
Orchard Park During View on May 8,1979
Orient Heights During View on April 19,
1979
"Order of Appointment of Housing Advisory Committee",
proceedings,
(civil
action no.
17222)
"Order
of Appointment of
action
no. 17222)
(civil
"Outline
of
Authority,
Opinion on,
Receiver",
Perez
vs.
Perez
1979
Perez
proceedings,
the Boston
Housing
(S-1917)
"Plaintiffs
Memorandum in Support
Receivership", February 1981
of
Support of
"Plaintiffs
Memorandum in
Receivership from the Tenants Policy
the Continuation
of
the Continuation of
Council", February 1.932
"Pl.aintiffs Memorandum on the Progress of
Continuation"
February
in
Support of its
Receivership and
1983
"Plaintiffs
in
Support
Memorandum on the Progress of
of its
Continuation", February
Receivership and
1.934
"Report
the Master
of
Whittlesey,
July 1,
to the
Boston Housing
Court",
Robert
1976
"Statement of the BHA with Respect to
Receivership", February 1984
Continuation
of
"Statement of Position
on Continuation of Receivership from
the Tenant's Policy Council", February 11,
1.932
H.man
Services:
"Interim
Formative Evaluation
Services Program to the BHA",
January 1934
Clay),
Report on the Supportive
(Levine Associates
and Phil
"BHA Supportive Services Guidelines
Fersch),
August 193
for
FY
1984",
(Elaine
(continued)
BIBLIOGRAPHY,
Legal:
"BHA
Goals",
"BHA
Reoccupancy Projections
February
(Rod
Solomon),
March
13,
1984
1984-1987",
(Rod
Solomon),
1.984
Operations:
"The BHA Maintenance Division:
Stone and Webster Consultants,
"Minority
Organization
197C
and
(department),
Occupancy Report",
September
"Monthly Management Report",
(department),
April 1983 through April 1984
"The
BHA Field
Operations Manual ",
"Report of the Task
January 1984
The
BHA
Standard
Force
Lease,
on
(TSR
Issues
(department),
1981
1-12,
March
(David
Maint.enance",
year
Procedures",
1.984
Gilmore),
1984)
Planning:
"The
State of
Public
the Development
Information
"BHA'
s Capital
"BHA
Developments
and
Homesteading
"BHA's
Legal
"BHA
Policy
"BHA's
Program",
circulated
1984
1982
During Recei vership",
Income
November
Limits",
circulated
Post-Redevelopment
Tenant
Handbook",
"BHA
Tenant
Task Forces",
Special
1.984
1982
Occupancy Figures",
prior
dated
1.984
to receivership
July 1983
Monies"
'vacancy Rehabilitation
s Status of
dated
1984
distributed
"BHA
"BHA's
circulated
1984
Accomplishments
Statement",
1979
1983
ci rcul.ated
Assistance Program",
"BHA's
Maximum
dated
by Neighborhood",
Employee
(department).,
Handouts:
Improvements Report",
"BHA's
"BHA
Report",
Redevelopment
Activity",
September
circulated
1.983
1984
BIBLIOGRAPHY,
Greater
(continted)
Boston
Legal
Services:
BHAVs Goals Statement",
a letter
from
Newman to Judge Paul Garrity,
(March
"In
Response to
Attorney
Leslie
1984)
"GBLS Community Legal Education
Outline",
July 23,
1991
"GBLS
Newsletter
~Tenants
United
"Proposed
Sanitary Code Enforcement
to Public Housing
for
Tenants"
Public Housing Frogress,
Performance
Standards",
"Public Housing Tenants
February 24, 1984
Set
23,
(TUPH):
February
Tests for
BHA
28,
1984
Receivership to
End",
Proposed:
Legislation
Goverance in
the City
"An Act Relative
to Housing Authority
sponosored by the Commonwealth Tenants
of Boston",
Association,
Represenative Tom Gallagher and Senator Royal
Sr, November 15, 1.98:3
Bolling
News l etters:
Winter
Life",
"The Boston Housing Authority
Spring
"The Boston Housing AuthoritV Life",
"Public Housing Ex travaganz a"., November 19,
Lgcal
Developments
"Beech
Mass
1982
1.984
1983t
Street
General
News",
"Broadway
News"
and
"Orient
Heights Headliner"
Laws:
Chapter
15C) E:
Chapter
105,
State and Civil
Service Employees Act
CMR 400 State Sanitary Code I
410 State Sanitary Code II
411-41.9 Reserved
B I BI I
OGRAPHY,
(con t inued)
News and Magazine Articles:
Joanne Bell,
25, 1984
"Housing
Guidelines Protested",
Globe,
February
Phillip
Clay, "Finding Solutions to Boston's Housing
Shortage" Globe, September '26, 1.983
Bernard
Good?" ,
Cohen,
"Is Harry Spence God? Or
Bost on Ma~gaz ine, December 11981.
Is
He Just Damn
Judy Cooper, "Public Housing: HUD Stud y Says that Fublic
Housing is Rapidly Becoming the Nation's Female Ghetto",
Eual Times Newsia-ers March 13, 1983
then 'Yes'
John Forcucci,
"Flynn Says 'No7,
Baystate Banner, January 5, 1984
Visit",
John Forcucci, "For Tenants,
Banner, January 5, 1984
to Project
Housing Not a
Baystate
'Home'",
Daniel Golden, "In Orient Heights, Tenants Turn Neglected
Globe, May 6, 1983
Project into a Success", Boston
Daniel Golden and David Mehegan, "City at a Crossroads",
:azine, September 18, 1983
Globe Mag
Globe editorial
"Housinq
Globe sta-F-f, "Tenants
February 25, 1984
Boston's Poor",
R S Kindleberger, "Resurrecting
Gl obe , August 20, 1983
1984
Globe,
Edges Towards Change",
Globe,
Hub's Fublic Housing",,
BHA
for Another Year"
Agencies Assailed",
Washington Post,
R S Kindleberger, "Garrity to Control
Glove, February 25, 1984
"Housing
26,
Want Receivership Ex,-It.ended",
Jonathan Kaufman, "Charlestown
September 17, 1983
Howard Kurtz,
January 1983
April
"Rental Shortage--Debate
Howard Kurtz,
1985
aShingiton Post, December 31,
and Dilemma",
Chris Lovett, "The Name is Ray, the Title
January 5, 1.984
Dorchester A~rus Citien.,
is
Mayor".,
Rob ert Lovi ncer, "Can This Man Save Fubl i c Housi ng7 The
IHarr y Spence" , Boston Globe Magaz 1_re., Aut.st 23, 1981
BHA '
BIBIOGRAPHY.,
(continued)
Viola Osgood,
"Hattie
Dudley---A Fighter
Tenants",, Bostorl Globe,, Jutlv 28,*)-3 19.3
Wal ter
V.
Globe,
Jul y 4.,
Robinson,, "From
Tony Condos
for Mission
Hill
to Public Housi ng"
1983
Kir:: Scharfenberg,
August 6, 1983
"BHA
to Favor the Working Poor",
Globe,
Kir:: Scharfenberg, "Rebuilding of Columbia Point Threatened
by Dispute Over Developer", Globe, August 13., 1983
:.irk.:
Scharfenberg,
May Be Real.",
"Columbia
Globe.,
April
F'oint
21,
Breakthrough?
Lewis H. Spence,
"Creating an Undercl ass of
Boston",, Globe., April
11., 1981
of Lewis H.
17,
1982
Last
the Poor
"Remarl.k:s of Lewis H. Spence at the Citizen's
Public Housing", December 9, 1980
"Remarks
October
At
It
1984
Spence at the Ford
in
Seminar
Hall
on
Forum",
"Testimony of Lewis H. Spence, Court Appointed Receiver of
the BHA,
Before the Senate Committe on Banking, Finance and
Urban Affairs,
Subcommittee on Housing and Urban Affairs",
1982
Ma ch 30,
Lynne Tolman,
11y 17,
1983
"Columbia
Foint
Asks
More Secttrity",
Housing
Manager
at
Mi,-sion Main,
Gl.b.e.,
lInterv iews:
Glay
Blanco,
(April
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