INTERVENTIONS IN PUBLIC HOUSING:
IN SEARCH OF PLACE
by
Liora Haymann
Architect,
Universidad Catolica
de Chile
Santiago, Chile
(1983)
SUBMITTED TO THE DEPARTMENT OF ARCHITECTURE IN
PARTIAL FULFILLMENT OF THE REQUIREMENTS OF THE
DEGREE OF
MASTER
OF SCIENCE
IN ARCHITECTURE STUDIES
at the
MASSACHUSETTS INSTITUTE OF
JUNE
0
Liora
TECHNOLOGY
1985
Haymann
1985
The author hereby grants to M.I.T. permission to reproduce and
to distribute publicly copies of this thesis document in whole
or in part
Signature of Author
Liora Hayman
May 8,
1985
Mep
ment of Architecture,
Certified by
Nabeel Ha'mi, Thesis Supervisor,
Assistant Professor of Architecture
Accepted by
Julinj/einart , Cha j'tm)n
Deparbrr ntal Committee for
Graduate Students
1
..Iutcfi
INTERVENTIONS IN
IN SEARCH
PUBLIC HOUSING:
OF PLACE
Liora Haymann
Submitted to the Department of Architecture on May 17, 1985,
in partial fulfillment
of the
requirements
for the Degree
of Master of Science in Architecture Studies.
ABSTRACT
This work searches to build a framework for a rehabilitation
strategy
for
distressed
urban
Public
Housing projects.
It is argued that an appropiate
approach
needs
to
adress
both,
the
physical
and
the institutional aspects
of the
projects, and that the core of the distress can be seen as a
matter of
levels
of control at the project level.
In this
light, the notion of "mediating structures" -- as an intermeate
level
of control to be
built into the projects-- is
proposed.
The argument is
developed
through three stages:
* A search into the history of Public Housing and its decay,
to pinpoint
what built-in patterns of control -- in physical
and institutional
terms-- support
the
projects' distress.
* A review of current rehabilitation attempts in relation to
the issue of control.
* An
examination
of
what a mediating
structure means and
what the necessary conditions
are for its support through a
rehabilitation plan.
The basic principles for the rehabilitation strategy, are then outlined.
Thesis
Title:
Supervisor: Nabeel Hamdi
Assistant Professor of Housing
Design
2
ACKNOLEDGMENTS
I'd like to thank Nabeel, my advisor, for his guidance in my
wandering
through the vastness of this topic,
and for
his
constant reminding me of focusing and holding ground
-- even
if this work still is general and
broad.
I
especially
appreciate
his
confronting me again to the dilemma of
the
methods of working -- from the top-down,
or from the bottomup-- not
only
in
what refers
to
the
specific
proposal
contained in my work, but also in relation to my own process
of research.
A special thank also to
been
a friend and
has
stay at MIT.
Ed Robbins,
who more than
advisor,
whole
my
a kind support throughout
And then,
to Jorge,
thanks for your patience, your energy,
not
without wich this work may
your enormous support,
and
have been finished in time.
3
TO
JORGE
AND
ORLANDO
A
INTRODUCTION
subject of this work emerged
The
recent rehabilitation
from a questioning of
and Cambridge area.
seen
them
The
endless repetition of monotonous
lacking any
spaces
spaces,
and
blocks,
and the
vandalized
The rehabilitation attempts seem to intend
these projects to
to
and abandoned
of
of
and
provide them with a more appropiate
social and physical re-integration to
the
the city.
respond to the
adequately house the
failure
their
conspicous
are a common characteristic
massive Public Housing developments throughout
to
vast open
the
the
configuration,
spatial
isolation of the projects,
buildings
as I have
attempts in Public Housing,
in the Boston
the
poorest,
opportunity
to
the city and the
society.
extent is
To what
attempts
still
what
-- while
upgrading the
conspicously homogenous
extent
attempts
the
this really the case
is
Public Housing program
tion"
?
where
lies the core
the
Public
for
it to work?
Section
Housing projects
1 of this work
conditions-- are
in the
that dominated
Or
is
?
What
searches
To
rehabilitation
the
origins of
it a new updated
for an effective
?
rehabilitation
and centrally controlled.
but within the same mode of thought
case,
The
projects'
a new logic operating
opposed to the one
as
?
If this
"soluis
intervention
are the basic
the
in
conditions
into the history of
Public
5
into the causes of
its decay.
Housing
and
built-in
features that supported the
tress
The
It
?
the control on
reviews
in Public
one,
established a setting
Public
in
Housing
proposed
in
suggestion
patterns
the
section
emerging
of
is
upgrading
the
sites,
in
It is
then
argued
a
vast
controlled
a tight privately
light on
It
rehabilitation
the
focus
examines to
section
1
-- a
extent
need
control-- is a
current
controls
on
what
to
of
programs,
the
the
redefine
focus
do not actually adress
of
the
while
nature
of
dilemma, but only its evidence.
3 focuses on the proposed
of control.
The
structures"
first part proposes
as an intermediary
into the Public
means and
their
patterns defining
argued that the
It
Section
and
for the decay.
private/public
programs.
the control
1.
the
the control through
reviews current programs for
2
Section
dis-
"control patterns".
Housing's process of decay.
controlled realm and
publicly
on
is
users and
the rigidity of the control
that
the
projects' current
by the design of the program,
established
form
role
focus of the analysis
where
What
Housing project
redefinition of
the
notion of
level of
realm,
control
patterns
"mediating
to be
built
and examines what
it
implies. The second part deals with how to make
it
work,
and
ment
of a rehabilitation strategy
establishes the
involves the
basic conditions
for
for
Public
support of a mediating structure
the developHousing
in
that
the project
realm.
6
CONTENTS:
SECTION 1
SUMMARY/INTRODUCTION
CONTROLS ON USERS
1937: Targeting the poor?
1937: A program for social reform?
1937: Private sector: curtailing competition
1948: Restating the model
CONTROLS THROUGH THE FORM
The project approach: a setting for central control
Standards and lay-outs:homogeneization of place
The dichotomy: private versus public world
BREAK DOWN OF CONTROL SYSTEM: COLLAPSE
New tenants, new troubles: financial collapse
Physical patterns: supporting the collapse
A need forredefining control
SECTION
2
SUMMARY/INTRODUCTION
MANAGEMENT OPERATION IMPROVEMENTS
The performance Funding System
Housing Management demonstration
Targets Projects Program
MODERNIZATION FUNDS
The program
Physical interventions and the issue of control
Re-establishing controls on users?
Issues: Building intermediary levels of control.
Interventions with complementary links.
SECTION
3
SUMMARY/INTRODUCTION
MEDIATING STRUCTURES: WHAT IT MEANS
The core of the trouble:public versus private
Mediating structures for public housing
A tool for social change?
A setting for physical change
MEDIATING STRUCTURES: HOW TO MAKE IT WORK
3 forms of mediation
Getting residents involved
Initial organization tasks
The type of rehabilitation program
Setting goals and priorities: a consensus
Defining solution options: complementary links
The current moment: time to innovate?
BASIC PRINCIPLES: A SUMMARY.
7
SECTION 1
A LOOK AT HISTORY
SUMMARY / INTRODUCTION
the
of
conception
briefly review the
will
chapter
This
The purpose
Public Housing program and its formal outcomes.
processes
and
overview is to clarify the sources
of
this
the
have led to the projects' current distress and to
that
of
the
outcomes and apparent goals
between
gap
enormous
program.
It will
pinpoint
at:
a)
along
sector
pressures of the private housing
the
How
the concepts of ideal communities and the belief in
with
constant upward mobility shaped the regulatory and formal
ultimately leading to an amaaspects of Public Housing,
authorities
level of control of the part of public
zing
over the form and users of Public Housing.
b)
a
this defined a pattern of strict division between
How
a
extremely
totally publicly controlled realm and
vast
that was clearly reintight privately controlled realm,
forced by the physical patterns.
C)
flexibility
extreme dichotomy and the lack of
this
How
physical
the
in
the administrative system and in
both
designs in affording alternative forms of control contributed to the collapse of the Public Housing projects once
the original social circumstances had changed.
the
project
of the control patterns at
The
reformulation
terms,
seems
both,
physical and
institutional
level
in
therefore a necessary focus in any rehabilitation attempt.
8
9
It is hereby declared to
be the
policy
the
the
United states
to
promote
of
Nation
by
welfare
of
the
general
employing
its funds
and
credit.....to
assist
the several states to
alleviate
present
and recurring unemployment
and
to
remedy....unsafe
and
insanitary
housing conditions.
(Declaration of Policy of the 1937 Act)
... we
hearthily approve the passage of
this bill, for the reasons, first of its
of
relief
toward
potentialities
unemployment;
secondly, for
its
longwill
effects,
which
range
planning
stabilize unemployment;
third,
for its
slum clearance....
(readings from Congressional records)
It
is revelatory that
basis
of
products
as
the
the Housing Act of
institutional
arrangements
an economic measure and
the
program.
mainly,
the
depressed
as
not
provision
and
is the
physical
as a social
context, the
responded
of
housing
program.
one of multiple
purposes
the Act
jobs
stated
and
goals
stimulation
of
as,
the
the former.
specific design and targeting of Public
secondary to the
larger
production
basically to the pressures of
involved:
its
and secondly, the production of housing
to achieve
Housing was
groups
Officially,
industry,
a means
In this
-- which
of today's welfare housing-- was originally passed
The provision of housing was only
of
1937
The
private
goals,
the major
business
and it
interest
sector
and
the
shaped
the
depression-impoverished middle class.
As
decribed
program,
CONTROLS
below,
basically
ON
USERS
these
groups'
through the
and
pressures
introduction of
CONTROLS
THROUGH
particular
FORM.
10
11
SECTION 1A
CONTROLS ON USERS
12
(1)
Are you going to penalize the peopin
thrift
who have shown some
le
Who should get houcountry?
this
have
who
the people
first,
sing
to
some thrift and are able
shown
are
or the people who
rents,
pay
with
poor we will always have
the
us?
Co.)
(President of a Redevelopment
pp131)
(Bredemeier, "The federal.."
Early residents of Public Housing.
(2)
An
employee
who is spoiled
eve-ry
night
by bad rooming
and
housing
and
who comes back in the
morning
not
recreated...
Much
of
the
maligning,
gentlemen,
much of the
criticism of workmen...is...because
after
they
get
home...they
come
into housing that is not fit.
(cited
in Bredemeier,
"The
federal.. .",
pp47)
13
TGETING
1
Even
THE POOR?
by 1937
if
improving,
rental
there was still an
housing:
during
the recessionary economic conditions
The number
acute shortage
of poor
But these
of the middle class and
had increased
were
new poor
articulation,
candidates for whom
Public
Housing
illustrated
by
conservative
the program's
offset by tenants
group.
This
requirement
rent payments:
real
income
form of CONTROL OF
a
poor,
social
were
too poor
for
Public
that
is
best
operation
arrangement
income
capacity,
see fig 1
class-- and
thus
USERS of
dependant families with
point
This
the submerged middle
working poor,
established
The
designed.
emerged not so much from a radical
clearly targeted a population with a basic
-- the
the
but out of a clear demand of a politically active
generally
be
their
These millions
Housing program initiated in the 30's was
costs
members
in civic matters,
Public
ideology,
barely
formerly
as well as their expectations.
the actual pressure group and
but
enormously
retained their middle class
as such,
culture, their habits of expressions
were
of adequate low
the depression and millions of families were
making a living.
were
Public
Housing.
irregular
or
no
1
Housing.
1937
PROGRAM FOR SOCIAL REFORM ?
2A
Perhaps
Housing as
a
fringe
of social reformers
looked
on
something more fundamentally "social":
in
the program
of
"model
an opportunity to give
environments"
that
would
Public
They
form to
their
relief
the
saw
ideas
poorest
14
(3)
Management
controlled every aspect
of
dayly
life-- pets,
overnight
guests,
color
of paint on
walls,
schedules
for using
washing
machines...in a combination of disdain
and
high
minded belief that
P.H.
could
elevate residentsmake
them
more orderly.
(G. Wright, "Building...", pp232)
(3)
If
a
kid walked on
the
grounds,
they almost got thrown out. If they
found
a paper on the grounds
with
your
name on it you had to
pay
a
dollar.
(Washington Elms residents)
(4)
The role of the goverment was -- and
has
remained-- that
of doing
for
the
the
sake of human rights what
a
do...
business system failed to
of
dominating
goal is the welfare
the
business community,
viewed as
the main institutional structure of
the society.
(Bredemeier,"The federal..", pp108)
15
citizens
of their
Paradoxically,
and
its
goal was contradicted
by the criteria
complete
elegibility
via
used for
environments"
condition
demand
seemed
to
could
were
also
by
lease
behavior
environments
was
the
through
were
etc.
which
.... The
The social
thus coupled
"model
tenants"
Given
and
as
a
the high
of
Further
and
screening,
shortage
allowed
families
favored;
supply,
CONTROLS
monitoring
on life modes,
system,
3
grounds.
"good"
envisioned...
and
devised
regulations
implementation,
"model
be that selective.
behavior,
month
require
units
determinism
upon prior behavior
to work as
housing
authorities
ones)
reccommendations,
in order
for
USERS
white
was established
house visits,
in its
tenant selection:
and
2
impact.
educational
this phylosophy of environmental
social
(working,
condition through an
ON
in-project
through the month
easy
reformers'
eviction
notion
to a highcontrol
on
of
model
power
on the
part of local housing agencies.
3
1937
PRIVATE HOUSING SECTOR: CURTAILING COMPETITION
The
1937 Act
market
found stark opposition
sector.
intervention
Businessmen
that
private
program
was
in
such
a
public
unfair compe-
As a result of their
structured
housing
excessive
in the housing market would be an
tition to their activities.
the
feared
in the
way
pressures
that
any
competition was curtailed. Public Housing was conceived only
as
a
"corrector" of
therefore,
sector
the private market
responsible
was unable
only for
deficiencies,
those groups
4
or unwilling to serve.
the
CONTROLS ON
and
private
USERS
16
(5)
This
created
a "limbo
area"
for
those
making
too much for
Public
Housing
and
still too
little
to
access a private unit.
In the long
run,
this
created a
disincentive
for
Public
Housing
residents
to
increase their incomes...
(6)
tenants
We
must remember that our
They
homes.
come from substandard
The proare
low income families.
ject homes are far, far above anything they have ever known. THey are
decent, -safe,
and sanitary
homes
is
convenience
that
with
every
possible
under
cost
limitations.
intended
Residency in a project is
to be...a temporary bridge during a
period of financial stress.
(M. Dumayer,
1950)
17
(through
eligibility)
were established to
*
Controls
on
and PRODUCTS
be
20%
users:
lower
Eligibility was limited
private market:
than that allowing
expensive
private
increased
beyond
resort
market
$400/unit),
the designs that would
produced ones.
purposefully
idea
The
alternative to
Both
to only those
tenants'
income
access to
Once a
the
family's
it had
Unit costs were
to discourage
make the
to
had
least
income
leave
any
and
was
to privately
functional,
in standards,
not
(approx
"extravagance" in
projects were sturdy,
housing
limited
units similar
austere and minimal
that the
for families
unit.
this upper limit,
" Controls on the product:
the
limits)
5
private market housing.
to the
$100/room,
cost
ensure this:
too poor to enter the
to
(through
to convey
a free gift,
the privately provided units,
but
nor
nor
an
intended
6
to stay.
this
"institutional
image and
reinforced
a clear social
and physical
the private
housing and
the
controls
on
separation
users
between
the Public Housing realm.
1948: RESTATING THE MODEL:
'GOOD' TENANTS AND PROTECTION OF PRIVATE BUSINESS
The
second major piece of
the
1949
of
the
Housing Act--
1937 Act:
economic
subservient
While
this
followed very much the
It was also
crisis;
to
selectiveness in
legislation on Public Housing
The
the
launched as
Housing
private
goal
business
--
same patterns
a response to
itself
was
sector;
an
again
And
a
the users group was maintained!
1949 Act
did state the
goal of
"a decent
home and
18
(8)
Business interests insisted in
having a role in the Program, through
the
rebuilding of deteriorated urban sectors,
converting deteriorating
urban areas into
tax
bases.
Under title I of the Act, the goverment would pay 2/3 of the costs.
(G. Wright, "Building..." pp232)
(9)
Like
the cultural symbols of "good
citizenship",
the symbol "veteran"
was
used by supporters
and
opponents
of Public Housing to justify
the status quo.
(Bredemeier, "The federal.." pp111)
(10)
BHA, 1950's:
There is a difference between 'elidegibility' and 'acceptability'as
by
BHA:
An
"unacceptable"
fined
family is one whose composition and
behavior is
ea danger to the health,
safety or
morals
of other tenants.
family
*an
adverse influence upon
life.
ea source of damage to the property
a
source
of danger to peace
and
confort.
ein any other sense,a nuisance.
interlist allowing broad
A
....
pretation or bias...
Any
rejected
applicant
has
the
right to ask for a rehearing;
such
right , however,
is never officially explained to the applicant.
(BHA, "Public...", pp27)
19
a suitable living environment
rather
expressed
the
political pressures
private
building
support
to
program
that encouraged
for
reverse
their
stimulation
areas
the poor
from
became
valuable
the new units of Public Housing
"good"
or
"housing"
World War II
service men
9
home.
returning
eligibility
criteria,
maintained.
And
against
and
on
users
Housing
and
in the
through
behavior,
were
emerging laws
(1948,
Mass.),
the priority given
10
minorities, so that the
a relatively
of
the war
later,
despite some
these controls
comprised
a new wave
Housing in
brackets and
in Public
to exclude black and
still
Controls
during the 50's,
agencies used
program.
brought
families
income
discrimination
veterans
goals of the
deserving applicants to Public
industry workers,
vetrans
that
never matched the number of destroyed dwellings,
In terms of the users,
body
powerful
in inner city
poor
it
each Public
postponing the
local
work
Housing
removal of the
did not hold:
built
thus
the
the
conditioned
a
slum clearance
Thus,
of
in fact,
a slum unit had
Housing unit built,
8
the
deal.
Unfortunately,the
destroyed-- that was
For
be
were
for
they
linkage to
private redevelopment.
sites.
to
businessmen:
the Act on its
instrumental
for each citizen",
"selected"
to
tenant
white
and
pressures --
the
upward moving population.
CENTRALIZING CONTROL IN LHA'S
At
this point
alleviation
class
(first
it
of
is clear that
the needs of a
these major
crisis-impoverished
because of depression,
then, war),
the
middle
free
20
(11)
If
there was something you
needed
and
it
couldn't
happen
in
your
house,
there
was always a
friend
that could do it.
was
It was such a family thing. It
always a happy place.
People would
help each other.
(Washington Elms tenant)
(11)
There were numerous functions sponsored
by the CHA, the School Department,
community groups,
and the
residents.
Some
of the activities
held
were:
a
nursery
school,
a
summer
formal,an
annualbaby
contest,
a
garden
club,
a
fatherdaughter dinner, a horrible parade,
and a playground pageant.
(Washington Elms tenant)
21
functioning
of the private housing
reformers-- all
public
authorities' hands
mentioned
tenant
project-- and
to
aspects
These
limit;
lower
selection criteria;
and
a clear social
the private housing
between
and
of
the
in
USERS
income
limit;
behavior
within
physical
separation
the Public Housing
later be crucial to
would
the ideals
of a number of CONTROLS ON
above -- upper income
good/deserving
and
the centralization
to
led
social
sector,
realms.
changes
in
conception
of
the
Public Housing.
Nevertheless,
Public
in
Housing
the 40's,
as
the resulting
a publicly controlled
upward moving families seemed to
circumstantial
families,
seen
needs.
the clear
Being
being
station
such tightly controlled environments
needs and
with
selected
regulations
fitting
the
of
precisely in their
and
a
exactly the
"selected"
specific
capacities of that time.
in its
highly
for
great part
And indeed,
success of these projects resided
community,
Thus,
way
distinctiveness of Public Housingwas not
as a negative feature.
initial
for
all those major groups'
fit
a
way-station
initial years most projects
homogenous
and
upwardly
mobile,
nurtured
friendship bonds
articulate
were composed by a
population,
clearly
that shared a conscient solidarity
which
11
Since
projects
social
services
contributed
were well
and a clear
financed,
were well provided
to residents pride and
control on users was what supported
sense
and
of
community.
maintenance
by local agencies,
sense of care.
and
it all
The stark
a smooth dayly life.
22
23
SECTION 1B
CONTROLS THROUGH THE FORM
I
~iY4
4*L
Mir
'5
.ml
24
(12)
A
large project would have an
increased
chance for maintaining its
distinctive
character because
its
verysize helps to dominate the slum
neighborhood and discourage regression.
(Planner cited by G. Wright, pp234)
Planning has to be bold and comprehensive. If not, the result will be
only a series ofsmall islands in
a
wilderness
of slumsbeaten down by
smoke,noise and fumes.
No
traffic
should disrupt the community.
(Planner cited by G. Wright, pp235)
(13)
Walter Gropius: diagrams showing the
development of a rectangular site with
parallel rows of apartment blocks of
different heights, 1929
A
-77
T
-e
2- 8
-251
3
25
0
C
T
52
e-
12
,
1
,7
THE 'PROJECT' APPROACH: A SETTING FOR CENTRAL CONTROL
administrative needs of controlling
a large public resource,
reformers,
of the Modern Movement
principles
to their
" The
healthy
buildings forming
where
with communal
nity to develop
program
to
consequence
production-the
and
"project"
defined
led
in
found support among the
seemed
an
ideal opportu-
visions were also largely
the the production
goals
interests of the
they were grounded
in a
of
the
building
mass-production
rationalization of standards and
13
in the develoment of repetible models.
oriented thinking,
dimensions
dwell
ideas.
as to meet the
since
scattered
ventilated buildings, comple-
these formal
adress
as well
industry,
and
large self contained environ-
facilities,
their social
" On the other hand,
The
spaces
and spacious environments"
appropiate
expression
"liberated working class could
a
i2
social reformers. These well
mented
an appropiate
of open
visions
architect's
ments
design
the
(and even opposing) needs.
particular
collective
Interestingly,
in finding in
different forces converged
these
that permeated
were the main forces
Public Housing projects.
design of the
the
sustained
determinism
along with the phylosophy of physical
by the social
the
program,
the
of
goals
production
broader
The
in the
of
these
to land
pooling
and to
as a prototype product:
piece of urban tissue,
mass
communities,
-- ideal
the
the
emergence
of
total design of a
generally many times
larger
26
fig.2
Washington Elms/ Cambridge: replacing slums
LOCATIONS &
THE
"PROJECT APPROAC "
r-
1a8
West Broadway/ Boston:
oa e ne(bokeal
replacing the slums
=
avenuy ieghb ord
bIock
mvoIed lock
Jefferson Park / Cambridge: on the urban fringes
ceMpxiq6t k Mic
27
Ak
seefig.2
surrounding.tissue block.
For the new
than any
to
succeed,
both
controlled.
took
While
provided
side,
setting for
local
agencies
measurable place,
and social
which
the
had
described
be
before
"project" approach came to
controlling the physical
a
with
to
limited,
side:
it
non-dipersed,
facilitated both, the
construction
administration stages.
The estates took the
athe
form of super-blocks
stage,
latter
located either
midst of decaying neighborhoods,
see fig.2
The former
fringes of that time.
when
correspond to
the period
pushed
or
a
clear,
of Urban
differences
projects
formal
in scale and grain with their
stand
out as
/ void
apart,
this
symbolizing
earlier
an
Renewal, when
difference was seen
radical departure from
the
slums
and
being
acute
surroundings,
in
the
the
tissue,
older street grids
see fig.2
pattern.
Intentionally conceived as
the progressive
The
build on.
image,
"different" pcieces
little or no continuity with the
volume
urban
Public Housing was already
stereotyped
in
replacing slums;
to marginal areas that nobody would
Having
blthe
correspond to
Public Housing was still
were replaced by offices and
with
aspects
the CONTROLS ON USERS
care of the social
be an adequate
and
physical
communities
at that time
as an
nature of the projects
12
surrounding slums.
and
or
places
asset,
their
STANDARDS LAYOUTS:
HOMOGENEIZATION OF PLACE
The development of projects
instrument
to
as repetible models,
help centralized
control
and
was also
monitoring
an
at
28
A&V% AL-M
rim
fig.
3
Washington Elms/
W extreme homogenity ?
LAY OUTS
&
BLOKS
IANa
MIUIMA
asma
11.311s
E 3E ggEENE RI~ggE9'a
1948
West Broadway/ Boston:
extreme homogenity?
LQ
C'!'t
%all
I It
arbitrary heterogenity?
E
E
MR IEI
I ETETEEEEE
MNEE
g
a
ca
Wa
om
(13)
I-ronically, in one aspect Public Housing was often built far
better than private stock:
-- construction--. But then, nontenant
interests were at stake:
quality
construction
was
needed
for
buildings to last for 40-60 years in
order
to
protect the bond indebtness through which they were financed.
29
the
federal
It was argued
that
for national efficiency and
necessary
effect,
the
a
of
sort
level.
standarization
a pattern
book of typical
formations.
As a result,
fixed
idea of what
an "adequate" design was.
The "adequate" design
educational grounds:
small
plans
by
supported
interest
was
curious
somewhat
no closet doors -- to encourage neatness;
not
to be encouraged,
in providing an environment
family life.
a
frills" requirements
parent bedroom -- so that no child slept in
Permanency
and
book also perpetuated
expressed the "no
standards,
tight
through
this
the Unit Plans,
apartment
block
In
reasons.
equity
U.S. Housing Authority produced
was
same
so there
room.
was
to satisfy
little
long
term
No doubt,
production goals dominated over the
13
livability aspects in the design of the projects.
see fig.3
Lay outs are very diverse and apparently arbitrary,
all
tend
blocks.
to display a strong
There
different
are
edge
that
conditions of
sites;
lack
underline the
of
difference
emphasizes
Generally,
In some
streets,
to
cases
striking will
standarized and
"endings"
between
in-site-blocks
each block,
in
along with the
the homogeneity whithin
in
similar
for
the
the
in
on side
disconnection
all
lack
or
of
blocks
in others,
latter leaving undefined patches of land
with the fabric.
see fig. 3
Blocks
are rather
Their
in the spacing
a pattern of total indifference
laid out parallel to the border
angles, the
walks
is
regularity
although
projects.
of
design
edge-blocks,
sites.
common staircases
(9-12
flats)
30
H
U~)
a
0Q ao
'
tp
0
-
(i)
(D CA
(D
0I Ci)
(D 0
ct
N
'no
(D
CA
C
-A
E
0
-k
f 0) (D
(D
(D ct
S
-
are
accessible
both from back and
results in
would later
facades,
acceses
or views,
problems
of control and tenant
in
design not only kept projects
but
also
spaces,
support the rising
alienation in
The
a
given the lay out
This pervasive homogeneity
facade design.
and
which
relationship,
undefined back/front
rather
front,
the
estates:
from relating to context,
internal
an
impeded the projects from achieving
unity.
THE DICHOTOMY:
PRIVATE VERSUS PUBLIC WORLD
A
division
stark
either exterior and
was
was
territory
these
development
also
a
place.
took
basis
the
staircases,
common
as spaces
The front door
for
of
some
semi
see fig .4
social sitting out place.
But these
territories
would
later
the
be
As
the
steps
the definition
designed and barely sustained
The
interior
or
intermediate space or
special significance
for
a
ill
for
of social relations;
territory,
were
but
was
inside corners of L shaped buildings.
or the
basements,
such,
provided,
territories
totally public,
No other form of
and totally private.
of
flat design of the blocks:
by the lay out and the
established
Space
types
between two
were
private
elements
definition
prone
to
of
easy
dismembrement.
Tenants,
therefore,
functioning
worlds:
terrirtory, and
publicly
territories
two extreme
but
still
a privately controlled but
very
tight
moved
between
an extremely regulated public exterior. As
owned
were
and
maintained
designed to be
resource,
kept tidy and
these
a
public
to offer
an
32
fig. 5
1941
Washington Elms/ Cambridge
THE
IMAGE
Boston
West Broadway,
u fi
~U3flflpflfNTU
woIII5
A COUPa
'EITOET
COWFAI3)TO kT
THE R
T
Ot6
R)00DP
Awb ,9e TMO.\trT
(15)
to
There
must be a definite limit
permitthe maintenance a tenantis
could
project
do or your
ted
to
become a hodge podge of intesoon
temporary,uncolor schemes;
rior
sightly and unsafe repairs;...
(M.Dumeyer in J.of Housing, 19503
33
image
of permanence and
through
transformations
stark
contrast to the
personal
private and
scenes of the slums, where
inside and outside,
public space,
expressions or timely
see fig.5
a
interventions....What
individual
be the object of
not
could
merged together and
according to more or less
changed
These
physical outcomes were
the
of
interests and
the
part
of
"real"
The
in order
and standarized
expression
a sturdy
concept--
circumstantial
projects.
were
certainly built
But once those
dwelling
and
the
the estates
these physical patterns
still
social needs.
initial social conditions changed,
features
projects:
a)
the
allow
eased the upcoming
vs.totally
consequent
private),
integration to the neighborhood or
of
collapse
afore mentioned pattern
public
the
the system
Basically two built-in
new forms of control.
phybsical
(totally
Housing
into the physicality of
physical patterns would not
adaptation to
appropiation
the way-station
And while tenants were temporary,
fitted well the
the
avoid
goals of the 30's Public
financed and maintained,
control
to
of
private homes.
-- economic production and
program
well
residents,
ascribed to
feelings
of
Large
play:
an amazing low level of control over the environment
and
and
forces at
of
undoubtedly, a direct result
economic efficiency,
for
developments
,
flowed
forms
spontaneous
15
appropiation through the residents activities...
and
They
respectability.
institutional
the
of
territorial
and
b)
the lack
"project" approach.
34
35
SECTION 1C
BREAK-DOWN OF THE CONTROL SYSTEM
36
C16)
You
know,
the
screening
process
stopped,
and
that's when it went
downhill.
Because
then they let
every
TOm,
Dick
and
Harry in.
It
wasn't
a
family housing anymore.
The changes were drastic,
you had to start
locking
doors and buying lock
for
your
windows.
I guess I noticed a
change
in
1962,..when
they
came
around and put the big heavy
doors
downstairs and locking them, that's
when you know there was a big change,
society
is chaning.
The projects had to change too.
(Washington Elms tenant)
(17)
bitter
You got a lot of frustrated
watch...The
to
kids
with
women
the
some of
women were stillhere,
original women, but the men waer no
Families had broken
there.
longer
it
up and the women stayed because
That's what started the
was cheap.
trap.
(Jefferson Park tenant)
37
1950-60:
NEW TENATS, NEW TROUBLES: FINANTIAL COLLAPSE
in Public
families
of
the
Housing was the beggining of the erosion
control on users of
absolute
assisted
of
provision prohibiting discrimination
1949
The
part
the
of
local
agencies.
At
the
same time,
the
submerged
middle
residents
of
the
home.
And
individual
the dream of the
housing was
Public
lists.
found
the waiting
in
thus progressiveky taken over
by Urban Renewal
displaced
families
earlier
these
Public Housing were fleeing massively to
families were soon no longer
veteran
the
situation of
and
overcome,
class was
pursuing
suburbs,
formerly critical
in
inner
cities,
by
a
population who radically differed from the original one.
factor was
A main
of
procedures
top rents were
to be
in
and later,
fixed at 25%
influence on
composed more
dependants,
come
1969
tenant
(Brooke
(with a suppleThis
by HUD).
and more of minorities,
households,
system
Ammendement),
the population's change,
and female headed
screening
first serve"
of tenant income
operating costs provided
for
enormous
a result of the Civil Rights Act
were abolished. A "first
was implemented,
ment
as
then current discretionary
the
1965,
that,
had
which
tended
inmigrants,
all
an
AFDC
residents who
not have made the first cut in the previous screening
16
And these were not upward mobile families anymore.
process.
would
Instead
Public
of providing temporary shelter to
Housing
became
permanent home for
"good"
a
new
families,
welfare
17
class.
38
(18)
Management
got weaker and
weaker,
and
tenants got worse
and
worse.
Older
tenants
tried to
keep
the
rules.
Newer
tenants didn't
know
anything about the rules. The rules
changed,
and
then they made their
own rules...
(Jefferson Park resident)
39
had worked quite well through the
costs
was
Housing became the urban renewal
the real poor, rental
opened for
costs
With
ly.
more.
years),
The program's fiscal and
remained unaltered despite
A
increase ,in costs; Maintenance
out,
projects
institutional design, however
in clientele...
shifts
in motion,
improvements were
and capital
and residents' frustration heightened;
crime and
and
declined,
Services
a norm. Those families who could afford
turnover and
increased,
vacancies
dramatically
in
less
It would
be possible to argue
succeed
class
Housing program was not such:
was satisfied,
nor
It is clear
the
social
"failure"
The program
in serving as a way station for the submerged
according to the
adressed
that the apparent
"real"
original goals.
it,
desirable
the
affecting
18
and the life and state of the projects.
Public
further
leading to
networks
the
and
more
projects
ceased.
vandalism became
moved
income
the gap between
level widened
the
to
the
or
deteriorated
was
increasing
inflation and
the radical
debilitating cycle was set
deferred
incomes declined
at project management
expenses
and
Public
that
relocation resource and
rising due both to
aging of the projects (15-20
ability
paying
But now
kept pace with operating costs.
that
there
while
40's,
consistent demand by tenants with a
a
operating
offset
that required that rents
provisions
The
of
did
middle
Once this goal
it
never
intended to
serve
the system was only revealing what
intended to adress:
that
Public Housing was never
tenant population who now for
two decades have
lived and
40
(D
a)
(U
C
a)
a)
H
'0
C
C
(U
C
Q)
4-,
H-
will continue
to need
to
see fig.6
live in Public Housing.
Because of banning of local agencies' controls on
system is now -- for
Public Housing
of
"good
of
which permeated
families"
part
Any
adressed.
social
quite different from
and a perspective
perspective as well,
on the
therefore to be seen in a
rehabilitation process has
that
and
be anderstood
to
has
residents,
in terms
lack of oppor-
low level of expectations
and
then
will,
this means
as lack of education,
issues such
tunities and jobs,
political
What
because of historic circumstances.
of related
faced to
the first time--
if not by
poor",
"real
the
adress
the
users,
the
original
program.
PHYSICAL PATTERNS:
SUPPORTING THE COLLAPSE?
spiral
the
major
played by the
the control patterns established
by the
this
design
publicly controlled space versus tight private
financial crisis of local authorities
impact on the
running and maintenance
themselves
authorities
found
estates,
physical
With
in
physical patterns
of decay?
Within
vast
the role
was
What
the
networks
and
more
rapid
in
ones--
inevitably had
a
of these spaces:
incapable of maintaining
the
deterioration spread out.
turn
also broke down.
instrumental
-- a
over
of
residents
The physical patterns
supporting these weaker bonds,
the
social
were
not
since
the
physically barely defined territories required of the social
20
of
in the absence
On the contrary,
to survive.
agreemets
these
social agreements,
the formerly
"social"
territories
42
(20)
Who is responsible for what?
I used to tell the kids to get
out
of
that
tree
because
they
were
going to break it,
and they saidto
me
"you
don't own it,
you
can't
kickme
out
of
here
because
you
don't
own it".
I'd yell
at
them
"you don't own it either"
(Jefferson Park resident)
(21)
mischief
I create a little
"Maybe
little
a
and create
here
around
of
kind
their
That's
something"
to
going
else are you
what
fun,
Parents are too poor,
them?
offer
to
money
don't have the
they
so
take them out.
(Jefferson Park tenant)
(22)
The
kids
played
ball
here.
The
management didn't want it, but kids
being
kids,they still played
ball
in
there.
So they pulled all
the
bushes up, pulled all the grass up,
and hardtopped it.
(Jefferson Park resident)
43
became too
exposed, and therefore,
semi collective life,
the
The
became
front/back
access of strangers
vulnerable and
into the estates,
of
their
easy
public space,
access
could
staff to run
directly
from
resi-
no control.
spaces
no longer
operate
and
because
them;
the
they became too exposed
filled with dirt, and used
areas,
facilitated
which had served as
before,
to the lack of
as such due
dangerous
and since
any more, there was
And the basements of the blocks,
activities
even
ambiguity of the blocks
dents didn't know each other
for communal
a controlled
which had been a focus for
Thusthe staircases,
places.
for conflict:
settings
now
uncontrolled
and truly troublesome
for all
sort of non-legal
activities.
New patterns
over areas of
of use
emerged:
the projects.
of the exterior spaces
Authorities
many
reacted
unemployed
youths and kids took
The abandonement of maintenance
left them prone to
to the evidence
formerly planted courtyards
rather
at
The physical patterns and the
rather
than the source:
in the projects were
about this time...destroying what
22
hierarchy was still left.
over
21
vandalism.
little
the grounds.
spatial
system would not support
curtail-- the emergence of alternative
of control over
paved
Inevitably,
increasingly to their only controlable
tenant
tenants
sphere,
-- and
forms
retreated
their private
apartements;
3
FIT:
OF SOCIO-PHYSICAL
BREAK
A NEEDDOWN
FOR REDIFINING
CONTROL
The
physical
design
of the estates
supported
a
livable
44
fig. 7
BOUNDARIZATION
West Broadway/ Boston:
drasaM9-L i
E
RE
demarcation that
Physical
social demarcation
also in
results
(2N)
I guess the biggest disadvantage
of
growing
up in Public Housing is the
stigma:
That if you live in
Public
Housing, you are shiftless, lazy and
so
on.
There
are drugs and
crime
here,
but
just
like
at
any
development,
but the stigma is
the
worst.
(M.Hailey, Bromley-Heath, interview)
(23)
....................-- - - - - -- Project
kids
you
could talk to,
they respected
you.
Outside kids thought you were
a 2nd class citizen,
and they justdidn't
pay attention
to you,
(Jefferson Park resident)
45
environment
only under
social
inability to
the physical
life or
sustain
easily
controls
forms of spontaneus
other
any
promote
its
revealed
environment
physical
the
down,
broke
controls
institutional
Once
expenditures.
on users and high maintenance
controls
the
the original conditions of stringent
of
or
the
This only contributed
grounds;
to accelerate the alienation of residents.
The nature of.the
design itself reinforced the definition of only two forms of
seefig 8
territory -- totally public/totally private--. The dimensions
and
configurations
individual
control
centralized
control.
of the public
space
difficult
required
and
made
some
there was nothing
the
internal cohesion of the projects.
And
in terms of the relation to their context,
had
a
role:
marginal
poor
projects'
boundarization
of
and not
those who stayed:
in a clear social
Defined now as
the low middle
perpetuated
The physical
class
projects supported
of
for
"project
serving,
anymore,
the
the
in public housing
23
"unable to do it".
physicality
collapse
left
see fig. 7
demarcation;those living
The
environments'
system
demarcation results also
seen as those
the 70's,
of
the marginal condition
now stigmatized and
In
the
areas
were
enclaves, ghettos
form
Once the locl agencies'control
over the public realm broke down,
approach"
spontaneous
of the
their
becoming
for the poor.
emerging
new
nature,
were
public
housing
visions
about
supporting this
had
also
residential
idea that
sources
in
the
design
46
(24)
The West End was a run down area of
people struggling with the problems
of
low
income ,
poor
education,
etc...
But even so,
it was by and
large a good place to live.
(H. Gans, "The urban..." )
(25)
to
the
Society
has
contributed
of project residents
vict.imization
by
setting
off
their
dwellings,
stigmatizing
them
with
ugliness;
every
status
symbol
saying
with
architectural
in
the
available
language of our culture that living
here is falling short of the
human
state.
Architecture
can create
encounter
and
can prevent it.
Certain kinds
activiof space favor clandestine
ties
of
criminals;
an
architect
armed
with some understanding
can
avoid
providing
space which
supports it.
(0. Newman, "Defensible...", pp12)
fig.8
1-
Habraken's
diagrams on territorial
depth:
1 illustrates Public Housing's dichotomy:
the existance of only two
types of territories, a vast public
one and a tight private one.
2 on the contrary, shows a progressive
move through public to
private territories.
47
in which he
Villagers",
"The Urban
city
environments did provide
for
Herbert Gans published
rather than only social ones.
aspects
a far
argues
better physical support
relatively safe and active urban
a
population,
stricken
than its
urban
life for
quite
relates
in
terns
directly design
Public
Space":
of
incidence
design
in
moves to deterioration
by
basically
Housing,
a poverty
24
counterparts.
renewal
Newman developed his ideas of "Defensible
Oscar
inner
that older
provision
(or
he
pat-
emphasizingthe
of
lack)
control
25
(vision,
mechanisms
the
other
concept
hand,
of
"powers"
Place
John Habraken, on
size,etc).
in a more coneptual
realm,
based on the notions of
seems
historical
this
patterns have both
control
overview
a
still define
their
administration system.
and the "project
institutional
lack
has
of
the
flexibility in the
state.
into the program
approach"
dichotomy
in
the
"public
in both physical and
now sources of
face of changing
contributing to
distress.
A
circumstances
the projects'
The reformulation of the control
project level,
that
social/institu-
circumstances
The extreme
terms have become
characterized the system,
current
the
the physical typology of the projects and
30's,
vs. private"
a
and
of
sustained
an
patterns build
of particular historic
result
troubles
is
a physical and
tional compnent. The control
as
it
developed
"territory"
to corroborate the
see fig.8
Public Housing experience.
Through
that
access,
patterns at
seems therefore a necessary focus in
any
rehabilitation attempt.
48
49
-
-
~
SECTION 2
CURRENT PROGRAMS AND THE ISSUE OF CONTROL
-
1
51
SECTION 2
CURRENT PROGRAMS AND THE ISSUE OF CONTROL
SUMMARY/ INTRODUCTION
This
chapter briefly examines the initiatives for
improvein
the
ments
of
Public Housing that have been undertaken
last
decade
in- the light of the previous section's suggein
control
stion
that
a reformulation of the patterns of
physical and in institutional terms seems to be in need.
This
section pinpoints at:
the
basic
making
and
a)
maintain
basically
attempts
How
the
distribution
of
control
on
decision
transformation of the estates.
b)
How in its
most
comprehensive
rehabilitation
attempt,
the system seems to resort again to an ideology of ideal
environmnets where both form and users are a controllabproject"
le component,
and to the "one time investment
approach. It is posed that while controls are necessary,
are
the
basic question is that of at which level these
exercised.
C)
proHow some attempts at redistributing control at the
physical
ject level have been devised basically through
no
It
is argued that a physical approach with
change.
support questions the current fit and the
institutional
long range success of these design attempts.
52
53
RECENT IMPROVEMENT/REHABILITATION
ATTEMPTS
its
best argument for Public Housing is
The
away
poor have been driven
The
permanence.
projects.
almost everywhere except the
from
naIt's
a situation in which the pachyderm
weakness-ture
of goverment -- its greatest
in
at
least
strength
greatest
becomes its
sustaining a place where thepoor can live. We
you're
on that to say not only "yes,
build
staying", but "yes, we're going to reinvest".
(H.L. Spence, receiver for the Boston Housing
Authority)
In the
distressed
and
the goals
What are
decaying conditions of
suggested
that
patterns in
current
rehabilitation attempts adress
a-
housing agencies,
Modernization,
ments
in
projects.
The
previous
of
reformulation
this?
have been oriented to:
Operation improvements,
local
b-
the initiatives
view of
was necessary. How do the
Public Housing
control
Basically,
a
in
the
behind these?
and approaches
overview
historical
improvements
for
have been undertaken under HUD,
in Public Housing
the
a series of initiatives
last decade
in the
form of subsidies to the
and
through the
funding of physical
improve-
aging projects.
MANAGEMENT OPERATION IMPROVENTS
1. The
This
Performance Funding System:
first program was launched
a monthly operating subsidy for
program
rities
recognized the
as
consequent
Adressing the evidence.
in
1972,
local
it
incomes.
in
established
housing agencies.
financial gap affecting
a result of the changes
lower rental
and
The
local autho-
population
But the operating
and
the
subsidy
54
fig. 1
Intended
structure
of
the
program:
Control
Locus of Power
and
Responsibility
Central Office
Projects
High
High
Moderate
Moderate
Low
Low
Low
Low
Moderate
Moderate
High
High
1
2.
3.
4.
5.
6.
(Source:
fig. 2
R.Struyk,
Staff emphasis
Tenant emphasis
Staff emphasis
Tenant emphasis
Staff emphasis
Tenant emphasi
"A new...
)
-
TARGET PROJECTS PROGRAM
GOAL/OBJECTIVE CODES
Goal
No.
1
Title of Goal
Improving
Operating
Effectiveness
Objective
No.
1
Perform needed training of PHA
personnel
2-
Reduce average time to satisfy
maintenance service
Reduce vacancy loss
Reduce average rent collection
time
Reduce average eviction time
Provide effective management for
implementation of TPP plan
3
4
5
6
2
Improve
Financial
Condition
1
2
Increase operating receipts
Increase ratio of operating receipts to total operating expenses
3
Improve
Physical
Condition
1
2
3
4
5
6
Improve janitorial services
Improve exterminating services
Improve condition of grounds
Improve condition of structures
Improve condition of elevators
Improve condition of electrical
systems
Improve condition of heating systems
Improve condition of plumbing
Perform needed interior painting
Perform needed exterior painting
Provide needed replacement or
repair of equipment
Perform other needed physical
improvements
7
8
9
10
11
12
55
Title of Objective
4
Improve
Security
I
2
Decrease incidence of crime
Decrease incidence of vandalism
5
Improve Upward Mobility
1
2
Increase resident earned income
Increase resident employment
one of adressing the evidence of
is
approach
than
its nature.
incentiving
betterment
vings
the
rather
with
to fill
nor
it question
did
a gap
a provision for
sharing
sa-
it was still a financial
ap-
of management
local agency)
proach
it included
Although
problem
the
(through
and did not adress
the
issues
behind,
the Local agencies' operation or
control
system.
2.
Housing Management
As
opposed
to
the
attempted between
that
problems
might be
redistribution
making
a
management
intended to
program
time
through
Project
efficiency of management strategies
the
first
adressed
at the
The original design of the
level.
for the
acknowledged
--
program
this Demonstration
above,
1973-76--
inefficiency
decision
Improvement Demonstration
test
by varying the
em-
staff and tenant control at individual demonsee fig. 1
projects.
However, as it was finally launched, the
phasis between
stration
program had a very unstructured form,
ring
plan,
and
Projects
Interestingly,
neled
ly
rather
Program:
this
one time
possible,
nor
was the
first program
than agency-focus.
additional operation
investment approach.
Between
subsidies
distressed
with a
methods to adress those
issues
project-
1975-78,
it
specifically to
projects.
The program stated
seefig.2
"performance" objectives, but did not refer to
or
monito-
forward....
3. Target
focus
no meaningful evaluation was
a
value of specific improvements never analized
the
carried
so that
lacked
and
chan-
severe-
its
specific
the
processes
in a continous
form.
Not
56
(2)
Of
the
Urban Institute's
general
conclusions
in the
evaluation
of
this program,
one is worth mention
in relation to this work:
made
involvement
"Close
tenant
success more likely".
(R.Struyk, "A new .... " pp144)
(3)
Public Housing Comprehensive Improvement
Assistance
Program,
HUD
handbook
57
one
objective
the
would
the
interesting
current
operating and
existing
set
projects back into
to
and yet,
initiatives,
many participant
with
this massive
were
control.
normal
relationships
course.
initial
It
never ac-
Target Projects
improvements once
Prog-
improved
for massive
later...since forms
for
funding was
is
permeates
their validity has
were applying
funding,
The
effort
time
projects that were actually
again only two years
those
control
in this
In fact,
ram,
ning
of
observe that this ideology still
tually been proved.
dings
a redistribution
seemed to be that a one
hypothesis
underlying
within
refers to
fun-
sustaiexhausted
2
not actually worked out.
PHYSICAL MODERNIZATION FUNDS
THE PROGRAM
The
same
Physical
became
"one time effort"
Modernization
part
Program in
of
1982)
the
programs started
Comprehensive
in
1978,
Improvement
at rehabilitating
funds are meant
the
(which
Assistance
and which represents the more ambitious
comprehensive attempt
Modernization
attitude has also permeated
and
Public Housing:
for
and
the physical conditions
"Improving
upgrade the management and operation
of
to
Housing
projects,
existing
Public
assure that they continue to be availab3
le to serve low income residents"
Priority
years
is
old):
indebtness
given to
upgrading older
since they
period
"major physical
are
reaching the
it has to
be ensured
projects
(over
20
end of their bondthat they
have
no
deficiencies".
"Priority work-items"
for physical
improvements
are the
core
58
(4)
Priority Work Items:
"
Energy conservation improvements
Upgrading of buildings to comply
"
with health and safety codes.
the basic integrity of
*
Ensuring
the structures and systems.
*
Security
and
criminal
abuse
resistance.
*
Any
other improvement that signifies
inmediate and
demonstrable
cost
savings
for
the maintenance
expenditures
of the local authority.
(R.Struyk, "A new..." )
(5)
I'd
never
join
those
tenants
comittees
again because they don't
work.
They
try to make you
think
you're doing something. It's only a
pacifier for tenants. Not one thing
they
ever asked for did they
ever
get.
(Jefferson Park resident)
59
4
of the program.
Other provisions
program include
its definition and its
one in
dges
crisis,
but
also a result
comprehensive
provisions, since
rial procedures.
neighborhood
Moreover,
are
of poor
it acknowle-
design and
financial
poor
for the first time
mentioned as
and
this
In
neighborhood.
decay is a consequence not only of the
that
the
participation,
program is apparently the most
the
context,
of tenant
the relationship to
to
attention
encouragement
in
that are mentioned
manage-
tenants
participating parties
and
for
a
successful rehabilitation.
A closer examination, however,
reveals
its problems:
statement,
but the
Tenant participation is encouraged
in the
program
requires that "tenants
informed of the plans and
discuss
ideas
application",
effective
and suggestions
discussion
a token time,
groups,
discouraged
With
respect
mention
more than
for
information
involvement
via
organization,
dissemination or
in local
control is
social
ser-
thus further
non-funding.
to relationship to neighborhood,
of the potential role of the
neighborhood
Public
of
involving residents
in
decision
5
redistributing control.
Moreover, modernization
vices...tenant
other
submittal
are explicitly inapplicable for tenant
funds
for
3 weeks before
-- which seems rather
guidelines
making and
be
revitalization
Housing as an entity
.
separate
there is
project
as
The program
from the
no
acatalyst
still treats
community
and
housing assistance programs.
60
(6)
...The
following elements of phythe
to
contribute
design
sical
creation of secure environments:
eThe
territorial
definition
of
areas
spaces:
reducing the public
by unambigous diffe-rentiation between
grounds and paths,
and creation
of a hierarchy of
public
to
private zones.
*The
positioning
of
windows
and
to allow natural surveilaccesses
lance over public areas.
sAdoption
of
building
forms
and
idioms
which
avoid the stigma
of
Public Housing.
*Intensify the use of the grounds in
predictable and social ways.
*Reducing
the
number
of
units
grouped
to share a collective area
at
any scale
-per
stairway,
per
block, per project...
(From Newman's "Defensible...")
PUsac.
Schematic diagram illustrating evolving
hierarchy of defensible space from public
to private. Arrows indicate entries at different levels of the hierarchy.
61
2 PHYSICAL INTERVENTIONS
AND THE ISSUE OF CONTROL
"project"
In sum, the
approach and the
"one-time investment"
concept
characteristic of central control,
There
also an emphasis on
is
over
vement,
in the
reflected
more
the change
the
management procedures,
in
Physical
and implement.
easier to plan
also more
devoid of political risks and
or
"stable"
a
politically,
Physical change
is
and
in the relatio-
physical
prescence,
"improvement
communicating tool
to
relationships
Finally, physical
margin.
strong
underscore
the
form is also
in terms of
achievement
of
the
form is the
main means in the
lines
a)
an
well kept,
Newman's work has
this
common
It derives basically
underlying
from
notably Newman's theory and
for a "defensible space":
is
In spite of the diversity
sites,
them all.
of the 70's,
secure and
6
lance.
level.
in different
permeates
researches
be
at the project
proposals
theme
its
moderniza-
tion program by which a certain redistribution of control
of
a
product".
Nevertheless,
implemented
a
tenants are maintained within
neighborhood parties and
"secure"
form is
an
nships with tenants are more controllable. The
to
is
which
its potential impli-
structure
change in the power
impro-
example)
(via standards for
aspect
therefore
cations on
of
physical aspects
"priority work items".
controllable
still dominate.
the notion that
has to be under
become the
the
guide-
a space,
to
continous surveil-
paradigm of renovation:
Programming and categorizing of pulic areas
The vast common,
public areas
are redesigned
by intensifying
62
-~---------
-
--
-~---~-~--
S-
1 Washington Elms/ Cambridge
fig. 3
2 Wes Broadway/ Boson
1
2
Ganie Are
3
PROGRAMMING
63
PUBLIC SPACES
INTERIOR/EXTERIOR
INTERIOR/EXTERIOR
'-~1
new
groups, drying yardstot-lots,
see fig. 3
the pervasive parking
in a mosaic of uses;
places for
different age
pathways,
etc,
and associated
lots are usually de-centralized
when the existing lay
easier surveillance;
for
so that
cut,
throughways
private areas
for those
On a larger scale, some
into
are emphasized,
their boundaries
common courts,
surrounding street
the
spaces
and public
semi-
of
reinsert themselves
conven-
by provision of new
grids,
and breaking down the
normal
sized,
b)
interior/exterior relationship
super-blocks
into more
controllable ones.
see fig.
The
projects,
private
access
adding
This
grade,
or reduce
to no more
common stair
control.
to
converting the
the number
than 3-4,
their
of the units
give a large proportion
townhouse types;
C)
out suggests
become sort
projects seek to
streets,
own
to the units,
living around.
tional
Most
gathering
uses:
sub-areas with specific
categorizing
and
units
of families
sharing a
social
to ensure tighter
is done by treating apartments
into
as duplexes,and
new stairs.
Reducing densities
Most
projects reduce their
This is
also coupled with an
standards,
which
are
way
densities,
for easier
upgrading of the
below current
units,
control.
original size
regulations.
enough to
The
accomo-
redesigns provide
fewer but larger
date the existing
residents, given the high vacancies.
d)Image fit
The
question of
the
common theme
the "institutional
is of
image"
is also adressed:
ornamenting the blocks
through colo64
(7)
In the Jefferson Park Renovation,
...The
big court was to become
a
major
play area with the
4 corner
clotheslines
clustered
together.
This
met
stiff
opposition
from
tenants, because young parents with
little
mobility
used
the
corner
clotheslines extensively for drying
and
for
observing their
children
and socializing.
...The design was changed.
But
the
architect
succeeded
in
centralizing
child
play.
What
little vestiges of the hierarchy of
space
that
the tenants
had
been
able
to
maintain in the
face
of
increasingly
agressive affronts by
children
and
youths,
were
completely
disrupted
by
this
renovation.
(D.Powers, "Jefferson....")
We
didn't
go out
as
much
after
that,
it was too crowded. All different people were coming in,
from
the towers, the square, everywhere,
for
the
ball playing.
You
don't
have as much privacy;
We had
more
fights
and
arguments
then,
with
people from all over.
(Jefferson Park resident)
65
ring,
addition of elements,
stairs,
and making them more consonant with their
flatness,
the
and
contex-
typology.
control
torial
and
remains,
still
may
an
incalculable role
control
Secondly,
mediate
that
the
can
extent
those
not,
we are
nalized
larization of
too
for those deprived
after all,
7
residents.
but in the institutional
continous making of the
given
new
forms
even
if its
be
but
ade-
arrangements
form.
by residents
only giving an "upgraded"
form,
barely
and networks, which,
and reinterpreted
personalized
To
what
transformed,
?
still
not apparent today.
If they
and if appropiate
local
are
institutioThe particu-
spaces has potential....if expectations are
specific
and
been
is not ensured only by providing an
form -- today,
quate
is
intended
if
removing the existing -- even
be
apparent-- local territories
have
it has
architect's own well
out how a well trained
decisions
which
what,
who decides
Elsewhere
whose terms, in these redesigns?
pointed
the terri-
in
the part of tenants,
identity on
the question
But,
fine.
aim at increasing
all these moves
Undoubtedly,
in
porches,
roofs...as a means of breaking the monotony
pitched
tual
bay windows,
institutional
not
changes
are devised as well.
3
RE-ESTABLISHING CONTROLS ON USERS ?
With respect
ram
sets
to the social
a goal of
aspects,
achieving 97%
need
to review the local agencies'
dures
in order
to support the
the modernization progoccupancy level
tenant selection
and
the
proce-
production of a social enviro66
(8)
The
CHA established as
a
primary
goal
in the renovation of
Washington
Elms,
the need to revise and
alter the tenant group.
...The strict application of
the
criteria
established by CHA
means
an effective reduction of the minority population in the project.
(P.Jordan, "Public...", pp 136-7)
(9) with
agree
would
tenants
Some
that
coupled
stricter procedures,
with their active voice in criteria
own
their.
encourages
definition
and
rules
with
the
compliance
regulations.
(P.Jordan, "Public..." pp139)
67
that attracts
nment
the
tain
solely
and
it
removal
to
seems
proach
3
users.
This
resort
The
envisioned.
notion
original
is that
be,
if projects
question then would be
-who exercises this
intervene?
but of the
9
are exercised.
controls,
It
is import-ant
same we
posed
re-imposed.
If
to be
tenants
last
the
the
ap-
It
level
to note that
when referring
in the
is not
environas
actual
the
popps up again.
are to
this
succeed,
so,
is
control?
a matter of
(central or
on
ori-
function
ambiguity about who
some social control has
not
not
of
resources,
in order to
"good tenants"
authorities notion
is
the
that a "good
of Public Housing should
beneficiaries
the
"empowering"
poor,
the one mentioned
approach recalls
also required
on
again to screening and controls
Public Housing -- the
of
ment"
The
upgrade the
main-
project
improvement
through new forms of control over
them
of
image of "housing
an opportunity to
projects as
upgrading of the
than using the
rather
But
resort".
change
that formal
for the social
of their
emphasis
there is an
while
is understood
sufficient
the
gins
So
estates.
form,
physical
higher income residents to
some
local)
the
Could
having
no
in which they
basically, this question
is the
making on
forms.
to the
decision
4 THE ISSUES:
1. THE NEED FOR INTERMEDIATE LEVELS OF CONTROL
2. INTERVENTIONS WITH COMPLEMENTARY LINKS
What
seems
while
well
clear
is that all
these
programs,
improvement
intentioned, do not centrally adress the
distribution
of
control over the local project
issue of
resources.
68
69
Still,
in the context of these
improve.
btedly do
more
vulnerable
with
a
way,
as
because of
multitude of local
particularities
rehabilitation effort
be
this
dependant
Are we
poor?
is the
project
rehabilitating the
independant of the
all these
goals are
not
we believe that there
others
in
secondary goal.
"minimum" action
of
for
or
agency?
stock ?
the
To what
rehabilitation
that may lead
rules,
and
an
of such
of
participants.
the
that
some issues
so
easily comparelate
that adressing one
simultaneous
there
to the
is
can
some
basic
or
rest. The redefinition
control patterns
relationships,
to
satisfaction
(at
the
project
in management and physical terms has potentials
the development
core
are
That means
Public Housing's local
level)
physical
necessarily nor
complementary links,
easily be used also for
a
a
Selecting different hierarchies
tible,
of
according
the actual goals of
rehabilitation
linked to the
imply different strategies,
more
more
Should rehabilitation main-
should be.
neighborhood itself?
While
changes
deal
efficient
composed of
the upgrading of a still valuable
ly aim at
will
to
requirements can be absorbed.
Finally, there is the question of what
the
in an
is
power
its necessary rigidity
compared to a control pattern
to local
extent
we
is how long can
decision making
intermediary levels where adaptations and
Should
undou-
constraints on users.
..and under which
that a centralized
can argue
One
The question, however,
to survive
it
expect
interventions, projects
and
for
therefore be the
inclusive approach for rehabilitation.
70
71
SECTION 3
MEDIATING STRUCTURES:
REDISTRIBUTION OF CONTROL
SUMMARY/ INTRODUCTION
In
the light of the previous
last
section
sets a general
rehabilitation
that
patterns of control in
a)
this
section's
observations,
framework for an
approach
to
adresses
the
redefinition
of
the Public Housing project realm:
the
Public
in
control
central/individual
dichotomy
The
of
and the problem defined as one
Housing is discussed,
levels of control.
The notion of "mediating structures"
-- an
intermediary
level of control that stands
between
the central and the individual extremes-- is presented as
a scenario for a rehabilitation strategy.
b) The
second part,
establishes conditions and
porting
the emergence of such a mediating
the Public Housing project realm.
It discusses:
o
how can residents be
o
how
and
what
The
underriding
approach for
sup-
structure
in
involved,
rehabilitation
with if mediation
modes of
actions
or
plans
be
dealt
is a goal.
goal of
mediation
necessarily shapes
defining a rehabilitation
strategy.
summary of basic recomendations sets the framework
future development of a specific strategy.
the
A final
for
a
72
73
SECTION 3A
MEDIATING STRUCTURES:
WHAT
IT MEANS
''A know of no safe
depository of the
ultimate powers of
society but the people
themselves ; and, if we
thinkc them not
enlightened enoug-h to
exercise their control
with a wholesome
discretion,. the remedy is
not to take it from them,
but to i-nform their
discretion.."r
Thomas JeffersonT
75
4 THE CORE OF TH TROUBLE
I THE DICHOTOMY PUBLIC VS PRIVATE CONTROL
The
previous historical overview
tutional
division
realm
and an
extremely tight
solvence
financial
filter
terns
between a vast totally
clogged and
of
the process
those
local
But
once
those
the
pat-
force and greatly contributed
urban Public Housing
control patterns the
agencies
realm,
mobility,
(upward
residents became permanent,
of decay of the
" Within
premises
agencies) held true.
became an alienating
a
publicly-controlled
privately-controlled
only while the original
worked
in
formalization of Public Housing
and physical
stark
illustrated how the insti-
meant
the
to
projects:
financial collapse of
loss of
control
over
all
running and maintenance aspects of the projects.
" And,
unfortunately, that same
nal
structures would
the
emergence or development
control
support -and
the
projects'
The vicious circle of
vandalism,
flects
the central power's
reaction
both to
While
to
it
conditions,
can
in
conflicts
terns,
that
is,
in
rather
of alternative
retreatment
loss of control,
curtailforms
of
and the
and decay
the
re-
individual's
powerlesness
of
to each other.
be argued that
distress lies
institutio-
grounds.
his lack of control,
deal with or relate
Housing's
the
over
not
physical and
the factual
the
this work we
changed social
have
was given by the
origins of
posed that
nature of the
and
Public
economic
a setting
control
by the dichotomy individual/central
for
pat-
control.
76
C1.)
Berger
people.
77
and
Neuhaus,
"To
empower
and Neuhausen
Berger
dichotomy :
posed by this
best describe the crisis
society,
the individual in modern
"For
life is an ongoing migration between two
private.
public and
spheres,
extreme
are
The
megastructures (public sphere)
that is, they are not helpalienating,
and
identity
in providing meaning
ful
for individual existance. Meaning, fullto
and personal identity have
fillment
sphere.
But
be realized in the private
the indiviin the private life,
there
deown
is left very much to his
dual
and
upon;
rely
he
cannot
which
vices,
thus he is uncertain and anxious".
"This
dichotomy poses a double
crisis:
it
is a crisis for the
individual
who
between
must
carry
on a balancing act
the demands of the two spheres.
And
it
is
a political crisis because the megastructures come to be devoid of personal
viewed
as
and
are therefore
meaning
unreal or even malignant." I
This
is
today.
exactly the
And
therefore
in
this
conflict confronted
light,
in whose
built
to
the
attempts,
the
of
only reaffirms the
our
control
of
How can
and
a channel be
ultimate users,
making?
the
program does aim
How
can
one
rehabilitation
been
this dichotomy.
at a certain
-- basically thruogh new
suggested
current
issue. Little has
effect.ively break
analysis we
in terms
extreme dichotomy?
-- in Section 2--
Modernization
stated
-- and
of who decides what
individuals or
of central decision
in this
system to
should be
The issue
sphere of the
sphere
review
and
becomes a crucial one.
from the
intercede
The
terms,
Housing
the core of the problems
the solutions-- can
of "levels" of control.
by Public
that the
physical
done
While
by
the
redistribution
patterns--
question of who
in
decides
78
all
mo'st
or
that
assume
Many
are
housing
for
resources
organizations
by large
controlled
and that the essence of politics is
between
therefore the struggle
third
A
"public".
and
"private"
to
be seen
can
however,
sector,
important
critically
control
are
mainly those which
resources,
-- imagination,
person
a
of
initiative, cooperation....
(J.Turner. "Housing...")
Clearly, this third sector has been
supressed in Public Housing...
C3)
Berger
people"
79
and
Neuhaus,
"To
Empower
what
and in whose terms
programs,
given
We
made.
sions
the
themselves,
still an open question in
level
proposed that
in which
rather
it was
cised what had to be
2
is
the
decisions
than the
those
were
being
controls and
deci-
level at which
they were exer-
reexamined.
MEDIATING STRUCTURES FOR PUBLIC HOUSING
The
conceptualization
recalls
control"
the
sector'
'community
of
the problem as
idea
one of "levels
of what Turner
has
called
the
a means of defining new patterns
as
of
of
2
Berger and Neuhausen take
control.
cating
the reinforcement of what they
for
position, advo-
a similar
call
"mediating
level
should
structures":
".......those
institutions/organizations
that stand between the individual in his
private life and the larger institutions
reduce
which
of
the public realm"....
"both the anomic precariousness of individual existance and the threat of alienation
of the public
order"
.... "such
institutions have a private face, giving
private life a measure of stability, and
they
have a public
face,
transferring
meaning and value to the megastructures"
Our
proposal
Public
control
and
intermediate
should
Housing rehabilitation
rethinking
does
such an
be
into the Public Housing project realm.
built
tling
is that
of the
institutional
levels are defined.
or
attacking the
can relate:
and organizations
and physical means
by
the
which
Such a proposal
is not disman-
Public Housing system
itself, but it
look for better ways
public)
therefore involve
in which the two realms
-- through
(private
the definition of spaces
in between--.
80
(4)
have
programs
controlled
Locally
potential
for
demonstrated
their
assisting the poor and disadvantaged
to integrate
into the
social
and
economic mainstream.
...because
they are conceived
and
designed locally,
are more flexible
and
responsive to local needs
and
conditions...
(G. Faux, "CDC's ....
"
pp3)
(5)
CDC's
have
managed
to
stabilize
population
in ghetto areas and stem
the
tide of
abandonement:
"people
stay because they no longer have
to
worry
about
the
area
being
too
isolated or dangerous.
(Ron Hafer, Urban Edge CDC.)
The
CDC's
case is one
from
which
there is something to learn that can
be applied to Public Housing...
81
is
The emphasis
note
when referring
that
programs
Local
on personal
for
Authorities
decentralization
govermental
that
It
differs
to what can be
This
institutionalize
the
this
refers
individual
but communal.
The
whithin
to
and
the
is
not
posit-ion that
seeks an intermediary
nor public,
But
done
proposal
between the
from
functions.
de-centralized.
to
It means
to
individual/community link
4
the community/goverment link.
and
important point
is that
or
was
conceptualized
in
but
must
be
springing
from
the
needs
centralization or
a participation
give the people
to,but
it has
and
demonstrate
exists
and
Housing,
most
5
tions,
in
community.
U.S.
that there
that,
if
is a way,
that
recognized and
force
organizations, emerging
this
De-
top-down
are being
and
it
discussed
devised from the
in the
(as
structures
listened
governance.
-- a few in
many in other housing/neighborhood
recently,
are
local
little to do with development
it could be a potent
Cooperative
the
the feeling that they
growing number of examples
Housing,
Program
institutionalized
of
a spora-
central levels
the Modernization
before),
can
such mediation cannot be
occasionally devised from the
dic
A
important
this
govermental
limited
stand
private,
reinforce and
An
is
is
It
"local",
are
structures.
organizations
strictly
to
local.
de-centralizing
Housing
goverment.
and
Public
contexts--
position already
supported
in
Public
for rehabilitation.
tenants Task Forces,
the growing Community
all examples of forms that
Development
a mediating
and
Corporastructure
82
(6)
... they have taken their destinies
into their own hands, and are making
sophisticated and complex deals with
banks,
charities
and
goverment
and
upgraded
to get jobs
agencies
affordable houses.
"CDC's. ...
Faux,
(G.
C7)
The
issue
as I put it is "What
it
does
versus what it is" If
housing
is
denied
the
status
of
an
instrument
for
action
by
people,
then housing is ... removed from
the
cultural sphere,
becomes a product,
not
an activity,
and is reduced to
the status of kornflakes.
(J. Turner, "Issues in...." pp106)
83
can take:
they bridge between
larger institutions
of society to which
as individuals -- financing
for
tors,
local
for
services--
projects;
the
residents and the
they have no
access
for loans;
inves-
institutions,
city hall,
for
permits,
plans
and
common
of the
residents'
6
development.
acomplishment
of rehabilitation and
objective
3
individual
MEDIATING STRUCTURES: A TOOL FOR SOCIAL CHANGE?
Clearly,
a mediating
interests":
has
it
in
its roots
cannot deal with or negotiate as
has been posed
it
Elsewhere,
be
spatially disperse
in
this work we are
fined
(i.e.
physical
structure can emerge.
In
this
words--
not
mediating
de-
those
Ironically, here the notion
can
-- reversed:
become now a
a new intermediary
The
clear
institutio-
mean
also
becomes important -- in Turner's
7
it is,
but for what it
does:
a
structure in
Public Housing becomes
also
a
form
the poor".
One has to
emphasize the relevance of this
nal
is the most exposed
poor
But
Housing
only for what
of "empowering
organizations).
mediating structures ultimately
a political change:
they
which
mediating stuctures can
popps up again,
around which
nal
light,
but
concerned specifically with
residential environment
anchor
task or
individuals.
professional
"project" as a tool,
boundarized
a "community of
a common concern,
that
by spatial relationships;
of the
to
by a number of individuals,
shared
fight,
structure is, linked
to the
since the
alienation of
margicentral
84
(8)
have
people already
income
Upper
of
ways to resist the encroachment
is
not
their
megastructures.It
the plaything of utopian
planners.
They
mayallow
themselves
to
be
but
on
these
scores,
victimized
if
they
have ways to resist
they
choose to.
(Berger & Neuhaus, "To empower...")
(9)
the
power dominates
outside
"The
that
to such an extent
individual
occurr
will
transformations
no
The
unless the outside power acts.
the
negation:
of
one
is
model
are
inhabit
those who
of
powers
the
to
add
cannot
they
neutralized,
site".
(J.Habraken, "Transformations...")
85
controls
and
residential
8
the most
lacking mediating opportunities.
context can
clearly become one.
homogeneity of the residentsand
Public
Housing
is now a clear
Because of
the evidence
anchor
The
of its
the
troubles,
for residents
to
get
organized.
4
MEDIATING STRUCTURES: ALLOWING NEW PHYSICAL FORMS
How
is
mediation related to the
physical
J.
Habraken
to
initiate and control
power
in
defined
"powers
of inhabitation"
change
prevented
the
exercise
of
powers"at the local level altogether.
"instant
but
the configurations did
to act
"the
a
way
these
It not
not come
When
power
Centralized
that
it
"inhabitation
only created an
allowed occupancy only on
that nothing would be changed.
tunity
of
environment",
as
in the place"
Public Housing developed in such
actually
in,
of
Housing?
Public
tion
environment
condi-
the tenants moved
alive: The user's oppor-
is reduced to the relocation
and
distribution
furniture.
The public power tends to prefer a "communal space"
between
blocks
private
rather
than
spaces,
on
wrongly
understood
of central
the
a proliferation of
grounds
layering
of different
time
of
equity.
With
control,spatial hierarchy tends
alleys,streets
a
spatial
and
of managerial"efficiency"
sense
Porches,
over
local
a
exercise
9
to dissapear.
and squares are the
"levels of
the
and
control",
organization with its
expression of a
which
own
produce
elaborate
86
figl
fig
-m--
1o00 o
o 0 00
o0
04
0
0
0
0
00
Public Housing;
Territories defined in
large public one and innumerable priA
acts
power
central
The
ones:
vate
it
since
"standard" criteria,
through
indivieach
with
cannot deal separately
dual's needs.
between:
redefinition of spaces in
The
sharing
mediation among those
supports
formal
space and internal rules of
the
expression
central power provides general conThe
ditions for the form; agreement on their
specification and interpretation is provided locally.
of
number
hand
the
the
other
On
has
been
with
deal
to
interlocutors
reduced...
The subdivision can be carried
forward:
successive spaces in between provide the
settings
for local levels of agreements
and interpretation of the basic rules.
Local
expressions
and
variations
can
emerge...
87
in
transformations",
reductions,
process of
an incremental
additions,
or displacements....
retention of what
The
*
"additive
through
change
Environments
hierarchies.
already exists
ensures a sense of
continuity.
e
transformation of what
The
be retained,
definition of what has to
The
is based on
changed
to be retained,
has
what can be
and
is centrally controlled
what
only
the distribution of control:
(building lines,
chan-
many intermediate powers control other
etc);
heights,
its
of new needs.
in the face
even
valdity
ensures
already exists
according to
inter-
ges
(a shared
porch, a common courtyard)
nal
agreements
and hierarchy emerseefig 1
is distributed to mediating powers.
ge
if control
the
Under
Housing
spaces
It
is
current outcries
in the projects,
a
and
costly
provide
not
cure the
"powers
helpful
inhabitation"
inmobility over time:
of the same porches,
fade thy will be repainted,
same
the redesign
in the
but
all
attempt,
in the
same
at
Public
of
public
but
it does
run,it does
long
We now see
the
new colors.
addition of porches and
undoubtedly
of
monotony,
against
has responded with
system
not
tition
among its users. Variety,
endless repethey
color...when
the same
time,
in the
color....
Public Housing have
Control patterns
in
an institutional
component.
both a physical
"Mediation" has
to be
and
built into
both realms.
88
89
SECTION
3B
MEDIATING STRUCTRUCTURES:
HOW TO MAKE IT WORK
90
fig.2
1
INTERNALLY
S
2
4
VERTICALLY
T
3
91
HORIZONTALLY
MEDIATING STRUCTURES IN PUBLIC HOUSING:
3 TYPES OF RELATIONSHIP
its
meaning
in
A
the
for
conditions
to the necessary
last
this
in
realm of Public Housing,
refer
and
of "mediating structures"
of a mediating structure
building
tation
in the
will
we
part
the notion
presented
Having
in a process of rehabili-
Public Housing.
mediating
Housing
see fig.2
different relationships:
structure
basically three
in
Public
can
operate
that
is.
in
1. INTERNALLY
*
It refers to mediation among residents,
levels of control,
lower
*
Residents
they
what
for
gain an
determine
to
framework
priorities
their problems and their
that there are
individual
that individual residents
their environment,
about
concerns
position,
option
together,
that
draws
concern.
of common
action in a rehabilitation strategy.
sustains
but
institutional
consider
recognizes
This
around issues
at the
or
so that
positions
a
pluralistic
or
individuals.
together
common
some
share
solution can be discovered
could not be done as
individual
particularities
to a common
devised
Thus,
it
base
to
a new power position.
generate
2. VERTICALLY
*
It
refers
residents)
*
Allows
any
to mediation between the
and
a
higher
lower
level of control
level
(LHA).
for changes and particular variations to
project or block unit,
and
(the
for them to be
happen
in
absorbed,
92
fig. 3
LOCAL HOUSING
AUTHORITY
MODERNIZATION
Need, remedy & costing from
M*
engineering & operational
(central office) perspective
RESIDENTS
ORGANIZATION
Review of findings &
proposed plan; adds, critiques,
recommends amendments
Consensus
(notwithstanding pushing
& shoving in between)
Application to HUD (or other
source) covering all technical
& administrative requirements
A
form
of vertical
Expression of site/corporation
support & if necessary,
mobilize political pressure.
mediation
(Source:
Tenant
Management Demonstration, H.Moore, Jersey City)
93
or adjusted at
thus not
level,
an intermediary
with the necessary rigidity of the central
recognizes that the different parties
This
is
Since the relationship
no
one
but distributes
over the other,
see fig.
making power.
rules
3.
HORIZONTALLY
0
It
level
that
may
(neighborhood assoc.,
or
different communities
conflict
in part of their
overlapping,
-- a common action
in conflict,
-- a negotiation
project
necessarily
control
and decision
and context,
social services,
three
etc)
commerce,
some
of
object
issues
of interests may over-
a
if
and that:
interests,
at
or
if
level.
this
integration
its
to
residents can have a platform
such
as
the
street
"dividing"
connection of throughstreets, developwhithin
the
project,
com-
etc.
forms of relationship represent the
a comprehensive
up
the
of
can be more powerful;
ment of commercial opportunities
builds
party
local
projects
Neighborhood and
with common
deal
These
negotiated.
be
can be handled
contribute to the
will
neighborhood.
mon
the
of the project resident's.
Recognizes that
to
about
notion of mediation
or complement with
conflict
interest
This
the
refers to mediation with other organizations
same
lapp
the
a negotiation in which
at
aims
vertical,
in
involved
that these have to
and
environment,
same
level.
different interests or priorities
have
project
clashing
rehabilitation
communal
base;
strategy:
"actors" for
The internal
The vertical
role
aims
role
at
a
94
fig.4
WHO DOES WHAT?
Checklist
example for separation of responsibilities of LHA by transferrance to Tenant
Organization.
SITE MANAGEMENT TASKS
T0
LHA/T
Occupancy
Vacancy Monitoring
X
X
Apartment Preparation
X
Application Eligibility Preparation
Applicant Screening. Prioritizing & Placement
X
Tenant Orientation
X
Annual Income & Family Size Reexaminations
Intra-site Apartment Transfers
X
X
Rent Collection
Initial Determination
Billing (Centralized, automated)
X
Receipt (Bank Collection)
X
X
Delinquency Listings
Delinquency Follow-up
X
Administrative Notice
X
Summons Preparation
X
Court Filing
95
X
integration
project's
the
to the neighborhood and at
breaking
from a
separate
isolation resulting from its
central
at the
controls; The horizontal,
redistribution of power and
dependance
rest of the area.
power than the
HOW TO MAKE IT WORK:
GETTING RESIDENTS INVOLVED
The
first
foremost resource
and
community
intermediate
nal
a social insti-
the poor
rather
blames
nor
notion
of
the
do
who
residents,
is not
context,
same
know where to
terms
that clear in
pursuing
for
confusing
turn to
The
organize.
to
than
is
and this
private landlord
the
dynamics of
the
not
in which
that manages the
be
are unclear
roles
traditio-
is also
supposedly
Its
the
is
Local
the
it
tution
serving
especially
the other hand,
not fit this role because
this
get
on
enterprise;
it does
In
residents
been
it
on the one hand,
"landlord" and business
organize,
this
double nature that
of the
because
Agency assumes:
profit.
can
How
level?
of
the development
in public housing has
organization
complexified
Housing
support
the
are
What
involved?
get
basic
The
through a rehabilitation process?
organized
Tenant
to
conditions
necessary
intermediary
themselves.
residents
can they
how
is
question
the
are
organization
in building an
with
their
traditional
which
to
is essential
for
"enemy" against
PublicHousing.
a clarification
of roles
party
action and reaction to
occurr.
The
everyday aspects of
projects
should not
the
as the one who settles the
conflicts
between
96
(10)
Tenants'
views
about change:
"It
is about time;
I'm trying
to
bring my kids up right.
This place
is what I can afford and we have to
do something."
"Thy're
going to do what they want
and
we're just a
big
front.
Its
just
to get our name on a paper to
send to Washington so they can
get
funded".
"Don't
they
understand
community
isn't
ever
connect to this place?"
97
that
going
the
to
with selections or
deals
structure -an
mediating
a
tenant organization at
cannot
level-for distributing these roles
project
see fig.4
overlooked.
the
that
same
The potentials of
evictions...
intermediary
the
it be
should
nor
mamagement,
and
tenants
be
Historically, Public Housing tenants organizations have also
to sustain because of the transient
been difficult
tenancy
(a way-station).
housing is
Also,
usually more
fragmented than
the relations of production.
In later
years, however, conditions
1.
explosion of grassroot
have changed:
protests
in the last
decade
generated a "culture" of organization
and has set
prece-
The
Poor
tenants to draw upon.
for
dents
2.
tenants, locked into
Public
Housing,
of themselves as long term residents,
not afford to move out,
for
improvements
of
Because
tenant
they
10
and control.
dissatis-
Since
they can-
are more willing
the de-personalized
relationship,
to provide adequate
and the
services,
increased, generating an
begin to think
even if
fied with their residential environment.
3.
the
society,
-- food,clothing,shelter-- are
consumption
of
easily seen as
In our
a collective activity by individuals.
relations
not
nature of
nature
of the
inability of the
the gap
anger that
between
has acted
to
fight
authorityauthority
both
has
as a motor
for organization.
Many projects,
and
failure
however,
present
an atmosphere
and an acute scepticism towards
any
of
mistrust
10
action:
a
98
(11)
Any
new
program
threatens
the
statu-quo.
The
unknown
variable
generates
insecurity and potential
conflict
between
the
established
order -- even if informal-- and
the
newly
proposed.
Conflict
can
be
minimized
if any proposal is based
on
the established
infrastructure
of tenant leaders and networks.
Jefferson Park courtyard, for example,
is
clearly characterized
by
block/corner
social networks.
Any
proposal
has to draw on or
emerge
from
these...
The
previously
mentioned
failed renovation of the
courtyard imposed a new order
that
overlooked these networks.
Jefferson Park Big Court
ONSI9
out
99
Friendship Patterns
to control even
inability
segments of their lives
a toll on residents, who -rather than
display despair
anger-
concrete
of
is the production
way
-- The
re-established
level of trust has to be
critical
best
has taken
inability to act.
and an
A
confirmed
and a
neglect,
of unfulfilled promises,
history
results,
dramatic
improvements
perceived by residents as being in their
interest -- in
short time.
self-
INITIAL ORGANIZATION EFFORTS:
A
DRAWING ON EXISTING INITIATIVES AND NETWORKS
A
first
step is the
basic
collective organizations,
ting
already
taken by residents.
It
or
any informal
is
important
process of revitalization
the
that
initiatives
emphasize
to
the local communities.
tenured
These
be
the
solidly
base.
Drawing
leadership
networks will
also
probably
besides contributing to
efficient channel,
most
intrinsic
usually represent
residents and a potential
on existing local communication
nucleus
to have its
has
in the existing human and organizational resources
in
exis-
careful recognition of any
a
11
sense of trust.
of
The
is essential
bottom-up concept
its implications on
definition of
control and
in terms
programatic
goals.
B
DEFINING TASK/IMPROVEMENTS THAT ACT AS ORGANIZING TOOLS
A key
is
issue
act
that
can
The
basis
enterprise.
the definition
of
an
as an organizational
for mutual
trust has
initial
task/improvement
tool.
to be
Community-institutional
adressed early in
relationships
the
will
100
(12>
An
example of a "first task"
that
met the conditions described here:
(From
a Tenant
Management
demonstration, H.Moore, Jersey City).
* The Authority would rehabilitate
block accesses (lobbies,
stairways
and hallways).
e The
tenant group would
maintain
the work,
preventing vandalism and
improving building security.
* The
mechanism
for
this
would
would
be
the establishment
of
a
"lobby
sitting"
program:
Tenants
would
monitor
in groups
of
3-4,
everyday.
Access
rehabilitation
offered
an
inexpensive point of departure; The
gouged and graffitied lobbies
lent
potential for highly visible improvements;
Accesses
were also areas
of
common use,
and
therefore
of
common concern. They are
symbol to
the
outside
world that the
residents care It drew on the
existing
-- if
tenous-- "block-networks".
Eventually, lobby monitoring served
not
only
the security
goal,
but
also as a mini social
that
event,
fostered
an organizational base -the "block"-- of longer tenure than
any
immediate
issue,
and
which
?ould
expand its focus to
include
other broader goals
101
The task/improvement has to
visible,
highly
in order to
have
order, with the involvement of the
3)
task/improvement should
The
credibility
initial sense of success.
an
have the potential to
It has to
be
dramatic potential,
rapidly establish
among all parties, and provide
2)
be
critical.
absolutely
1)
initial action can
long term maduration, but the
require
be accomplished
in short
residents.
adress
a component of
self-
to
all
organization actions rely on the resident's time
and
to
interst
and of broad
individuals
commonality
residents.
Since
potential product
energy,
the
dents as
accruing direct
taneously it
to
The
and
impact
the community
through
the
for the
services the
their direct
community.
involvement
training opportunity
The
a
order
both "rights"
task
right
in carrying
in taking the
in
involvement.
resident
residents have
and simul-
at large,
task/improvement scenario must involve
"responsibilities"
provide
perceived by resi-
to be
and individual benefits,
facilitate extensive and direct
4)
a
has to
has
should
to,
it out,
and
act as
responsibilities inhe-
rent to self-control.
In
sum,
short
term objectives,
clearly within the capacity
12
of involved
parties, are
a must
in an organizing scenario.
DEVELOPING A REHABILITATION PROGRAM
Once
the
first
work
towards
tasks
a longer
are
being
developed,
term rehabilitation
it
is
necessary
program.
If
to
the
102
103
tasks
initial
pectations and
It
is
this
interest will have
raised.
been considerably
important that this energy be
most
forward at
carried
point.
There
are typically two type-forms of dealing with a
lopment
rehabilitation
and
a "selected
The
comprehensive
nity,
it
and
easily
review
goals determined
into the broader city
budgetary processes.
city agencies and
by
can
a useful tool
be
by the commu-
it
policy makers,
be
HUD's
facilitates
and
and comprehensive
cause
for advancing the
to
or
plans,
In addition,
of centralized decisions
world
fit
decisions
all upcoming
that the project's plan
also enables
integrated
plans and
that
the longer range
in
smoothly
A "comprehensive approach"
plan:
plan:
type of plan assures
This
deve-
problems approach".
and
it
probably residents'ex-
have been successful,
in
HUD's
planning,
of
the
project.
However,
lengthy
comprehensive
the
sometimes
debates,
blocking effective action.
more complex
approach tends
plan tends to
degenerate
into
over periods
of
thus
Moreover,
to be
years,
its comprehensive
and
coupled with a centralized
control.
The
This
selected problems plan.
type of plan
that focuses
by
in
on
an
action-oriented
approach
on a few selected problems. Typically, it
identifying
developed
is based
3
to
5
"action
programs"
a relatively short time
(3,5,12
that
works
can
months)
be
and
104
-
105
I
then moving successively to
other action programs.
mental--
the
It
process.
realistic goals
for the
allows
that
residents
as unnecessarily lengthy:
a
"people's time"
real
problem.
careful
and more
and
there
"goverment time"
Resident's
interest
and
combination between
specific action
a general
be the
plans can
posed to
requirements
the
While
longer
interventions
necessary)
and
the
resident constituents and
its
its
it
by the
been
it has
is a
by
difference
that can
their
become
of
sense
(for
wich also
the action plan
accomplishments
the
long
the
inmediate needs
planning
term
system.
Housing
general goals and
major
is
also
term financing
will help build up
credibility,
used as a case
can then be
plan
right way for
longer
Public
term plan sets
of longer-term or
pursuit
of
comprehensive
mediating organiztion to deal with both, the
of
development
have to be maintained.
participation
A
can
is often perceived
the planning process
mentioned
between
that
Elsewhere,
and quicker results.
of
context
intermediary residents' organization
building an
control
in the
be more appropiate
to
appears
incre-
and
goal oriented
This type of plan -- short ranged,
the
special funding for
in
the
long term
tasks.
a
double
layered
strategy
Finally,
such
constant
feed-back from "reality" to
hand,
actions
are framed according to
avoid
fragmentation,
adjusted according
on
the
"policy":
on
the broader
other hand,
to the lessons,
allows
products
policy
for
the
a
one
goals
to
can
be
and receptivity
106
-
-
il-flfl lmT
-
Form
sheets
options.
fig 5
-
-.
-
-.
-.
-
for evaluating priority
of
I
fi.6
_
YOUR
AREA
WIN A BETTER HOME AND NEIGHBOURHOOD
Not a dream house - This is FOR REAL!
But again the point is - IT IS UP TO YOU!
IGET TOGETHER -TELL
USWHAT TO DO.I
Join a TASK FORCE to worM with SNAP and the CORPY if you can spare the time now is the
time to say Pick the problem you want to solve and post this card or dr op it in to
118 Kingsley Road
TICK
SERVICES
TRAFFIC
|
|
HOUSES
FACILITIES
WELFARE
|
CRIME
ANYTHING ELSE:
NAME
I
107
WATER
ELECTRICITY SEWERAGE
TRAFFIC & ROAD IMPROVEMENTS
HOUSE IMPROVEMENTS
SCHOOLS.PRE-SCHOOLS
PUBLIC CLEANSING
LANDSCAPING
BACK ALLEYS
MULTI- LETS
RECREATION.PLAY SPACES
HEALTH.WELFARE,
ADVICE CENTRE
VICE VANDALISM,
RELATIONS WITH POLICE
ADDRESS
I
obtained
actions' experiences.
from the
SETTING GOALS AND PRIORITIES:
A
in
task
central
mode:
should be
developed
the
a)
local priorities,
b)
impact
c)
likelihood of implementation
Later,
gain
and
these goals
the
problems
then be
discussed
c will help determine what has
wide
important that goals
to
in order
the
support on
on
notions.
basic
Subcommittees
can be made more specific.
focus
specific
problem-areas
dissemination/newsletter,
vacancies,
see fig 5
to
build up consensus
etc.).
In
order
important
making
to
develop
instances
network,
or
such
appropiate
as,
participatory
public meetings,
charrette-workshops
in
a
to
arrive
public
(security,
spaces,
by
of a solution.
Initially, it is
Forces can then
Task
b,
general level,
a
on
consensus
or
when.
done and
kept
and
issue,
of
A combination of these a,
be
project
at large for review and ranking, according to:
residents
to be
a
the
These can
it.
in
related to
identifying the issue,
assets related to
and
rehabilitation
setting of goals
is the
A list of issues
consensual
the
of
development
short term)
(long or
programs
the
A CONSENSUS
it
is
decision
a dissemination
residents
which
participate directly in identifying problems and options.
Their
direct
will
spur
Residents'
involvement in the development
see fig 6
their
identification.
Only
Organization
assume
resolving conflicts with city
or
a "real"
of the
then
can
mediating
federal plans
or
program
role
the
in
in putting
108
f ig.7
E
UQ,
0C
ELECTED-GOAL:
desi n
4
4-
im Llementation
W
C
_
Iooeration
The table lists all the goals and objectives
in the upper part.
On the
side,
the
three
instances
for
establishing
complementary
relationships,
for
the
selected
problem.
The
dots
establish
where the linkage may occur.
The
lower
part
describes
the means to
establish
the linkage.
109
pressure on agencies for funding or approvals.
DEFINING OPTIONS:
THROUGH IDENTIFICATION OF COMPLEMENTARY LINKS
The
action
plan
rests
on
before-
"selected
adress those,--rather
to
adressing
rather
but
on
the
contrary
This
comprehensively.
adressing the
by
site.
-it
should
identifying
be
mean
not
should
narrowly in its own
means:
scope,
with
dealt
potential
all
that can be'
(secondary) goals,
complementary links to other
devised
intending to adress com-
than
the problem component
ac-
of a rehabilitation
is that this
be made here
to
point
"problem
priority
some
of problems of the
prehensively the whole range
The
of
selection
the
said
-as
approach
problems"
and on the development
components"
tion
or
original problem component
in
a
particular way.
to ask when
The key question
is
secondary goals
see fig.7
problem component?
a very simplistic example,
commercial opportunities:
"daily
and
site"
to ask
How
can
How can
is
the problem component
not
"provide on-site
help crime prevention
a shopkeeper can have
this
the
through
available
shop",
on or
is
near
the questions
for example:
be,
this
can
having
the goal
would
location,
How
if
component
a problem
can we adress other
"how
solution of this
In
adressing
help providing
as
well
?
-- through
an eye
on who comes or
goes;
income
opportunities?
-- by
residents run it.
it help upkeep of play ground? -Using
Particularly,
in
the approach taken
in
this
shop's
work,
profits.
solution
110
111
be devised in
should
options
a way that
such
building of the
they
support residents organization
for
intermediary levels of
a main
dered as
community
There
for
is
a most crucial one
will
be
done,
that design
basic
it be
residents
will be
it
it
?
define
control
which
in
can be devised:
located;
what
deciding
it means
it is
essential
and
priorities,
and
How will
What kind
it relate to the
?
instance:
questions are
by the residents organizations ?
implemented through a joint effort/mediation
and
the
or
public
neighborhood organization,
" Can
of
resident
local
have to be carefully adressed:
implemented
be
since
the neighborhood
The implementation
Here the
instances
reflects residents needs
of territories will
and
it
where
implications
it
devised
instance:
This
" Can
The
also gives a new share
mediation opportunities
The physical design
" Can
a solution be
mediation for the
three
basically
are
context
consi-
?
channels and
its
how can
becomes:
control/opportunities
offering
for
selection of an option.
component that
problem
this
involving
rated and
be
should
control,
factor for the
former question then
for
that
way.
a structured
networksand
solid
developing
in
their potential for
two possible options,
residents,
reinforce
intermediary level of controls and
the
Given
they
consultants,
only be implemented
sector
private
by the
?
by
(LHA,
etc)
local
government
or
112
113
local
housing agency ?
The operation
instance
Who will operate
and maintain
it ?
Can
residents ?
Can it be done
dents-LHA, or
residents-other outside
through
it be
done by the
a joint venture
agent ?
Can
resi-
it only
be operated by the LHA ?
While
local
it
is
not a realistic nor
community
relize where
evaluated
controls every instance,
it can step
according
opportunities to step
The Public
based
the
in.
to
organizations.
local
type is
resources,
rily on the
is
their capacity of
the
important to
providing
be
this
in.
But
development of community
"organizations" cannot emerge
Rehabilitation
action-plan
it
that
Solutions options have to
Housing system needs the
void.
tive
efficient goal
programs,
an opportunity
if channels
in
particular
to catalize the
in
the
collec-
are built-in complementa-
solution options being used.
THE CURRENT MOMENT: THE RIGHT TIME TO INNOVATE?
A
main
question
is
that of the
Housing System to actually adress
through
are
To
an
institutional change.
resposible tu
ultimately
what
control
extent
level
the
of
Public
Local Housing Authorities
HUD on
projects.
their local
of
an
agency's position,
staff positions, goes beyond the
the
the rehabilitation process
implementation
threatens the
Nevertheless, the
willingness
scope of this
conditions seem to be
set
intermediary
or
internal
work.
today:
114
115
the
Authorities
can be
THe
directions.
will
Authorities
turn
about
b)
Authorities
target
in
any
reject
at-large
"one-time investment/total
seems to be
areas
approach to
an
initiate
a
in the projects.
approaches,
are forced
to ground
these efforts
relying on resources other
a transformation
spatial patterns,
and
new
that
procedures,
with
transformation
a consequent
encourage
to
in
than monetary:
in their management
as a resource,
the residents
the
to
new
into
implications:
The only reasonable plan
approach.
incremental/specific
of
forced
be
federal cuts
administrations'
characterized by the
strategies,
is,
be
has to
are forced
Modernizartion funds has some
comprehensive
project"
current
tenants
The
innovate:
solution
is the
money
and authorities and
abandoned
to
an opportunity
assumption that
convenient
a)
seen as
Housing
of Local
current financial crisis
Ironically,
tenant-territorial
control.
Nevertheless,
some
before embarking on
variables have
primary
to
be
checked
the process:
EXTERNAL-TO-SITE VARIABLES
* An
amenable political atmosphere
refers
but
also to city
Nevertheless
it
is
government and
the
Housing
essential.
or
neighborhood
and energy,
This
residents,
institutions.
Authority's
"Cooperation"
requires to commit staff
level:
local
only to the Housing Authority
not
commitment
at the
is not
inequivocal
sufficient,
to challenge the
116
(1')
INTERNAL VARIABLES
If there is a high turnover and
if
the
patterns of site household are
varying as well,
it means that the
nature
of
the
constituency
and
therefore their priorities
will
also alter rapidly,
thus affecting
participation
and
consensus
on
previously agreed upon
objectives.
In
this
case,
organization
may
not prove successfull.
Assessment
of site should identify
TRENDS.
I
I
6/73
12,73
I
6/74
I
12/74
6/75
I
I
I
12/75
6,76
12 76
I
6/77
Household
transition
graph
Public Housing project.
117
I
i
12/776/78
of
12,78
a
maxim
self-serving
"we
know
and
better",
significant internal
for
willingness
that
a
the
adjustments in
functioning of the LHA.
to offset the
" Sufficient monies
This
up:
includes
salaries
and
they
need
and
with
be offset
trainning and
the program:
in
assistance,
staff.
later
by increased rental
reduced management expenses.
and
" Proffesional
actors
technical
to support tenants organizations and
Eventually these would
incomes
initial improvements
the funds for the
of training and
costs
themselves,
start
cost of the program
principles
are to
If residents
familiarization
of
assistance
technical
with the Public
real
the
for
assume control
Housing program
and
management
estate
operation.
VARIABLES
INTERNAL
leadership patterns
* Existing residents
with
even
a well evidenced resident commitment
process
a
,
of assuming control
degree
of personal
participation.
Not
and
at the
project
decision
patterns.
external
mediate
as
a
making
have
Mediation
agent
(a
to
be devised
private realty
step
while
firm)
requires
mere
beyon
necessarily
through
self
intervention
according
can also be devised
between the community and
temporary
level
every project community is
control
to
assume
willing
or
13
Different forms of control or
management.
The
capacity:
collective resolve
"ready"
if informal,
site
to
by bringing
to
in
bridge
an
and
the authority,
either
strenthening
local
118
119
organizations, or
form of redistribution
as more permanent
of control.
In examining the
be
kept
process.
assets.
begins
the
internal or
external conditions,
in mind that delegating
Funds
can
to emerge;
evidence
be attracted only after
Political support
of positive
results;
develop
scope.
Assessment of a project
POTENTIALS,
current
is an
evolutionary
Only gradually can one capitalize of the community
need to
of
control
it has to
pluses
skills through
rather
than
a
also comes
only
after
Community leaders
achievements more
site ha
through
or minuses of the
case
limited
sto be done
the
static
also
in
in terms
view
of
site.
120
121
BASIC PRINCIPLES:
In
this
means
the
last chapter we have
for
supporting the
project
between
Having
conditions
The
As
it
level,
presented the
the
conditions
and
emergence of local organizations at
that could
the residents and the
powers.
which
A SUMMARY
this
act as
public powers or
goal
process of
mediating
of
structures
other private
mediation
necessarily
rehabilitation and the
mode
in
is carried out.
following basic principles
a very succint
chapter,
summary of the
they form the basis
development
of
stem
from this
issues
discussed
of a general
a rehabilitation
principles sustained throughout
conditioning.
in
framework for
strategy according to
this
the
the
this work:
PRINCIPLE 1
A COMPREHENSIVE DOUBLE FOCUS IS NECESSARY:
ON BOTH INSTITUTIONAL AND PHYSICAL ASPECTS.
The
history
of
institutional
structures
Their
Public
aspects
have
linkage
a
no
effective
how
sustain
each
other.
to be
essential for
contious
process.
A
institutional
effective "powers
PRINCIPLE 2
shows
therefore,
is
in
Housing
built in
them to
support
realms.
effectively
intervention
does
in the
and
Mediating
both
function
physical
of inhabilitation"
physical
not
with
provide
long run.
.
GOALS AND OBJECTIVES SHOULD REFLECT CONSENSUS
Identifying
differences
participants,
is
critical for
their
local
interests,
support and
motives
and
for mobilizing
122
residents.
a)
dissemination and
Mechanisms for
exchange of information,
and,
b)
A structure
for
have to
be devised
between
parties
participatory decision making instances,
to establish healthy working
relationship
for decision making.
PRINCIPLE 3
WHILE THE APPROACH IS COMPREHENSIVE
ESSENTIALLY INCREMENTAL IN NATURE.
As
opposed
to
approach -wich
power-
an
IN SCOPE,
the typical HUD one-time
approach will
organization
around specific
tasks,
allowing
the progresive
for
refinement of residents'
to reactions and
transformations,
create
based
so
on
vision of
the notion
will
lead
change in the
that policy
tomorrow, to
be
of goals
and
experiences along the
naturally
that the process
diversity and
manageable
In
according
this
and
capabilities and organization.
it
terms,
central
and
addition,
physical
a large
development
a re-evaluation
allows
BE
support the emergence of
intermediary
thus
SHOULD
investment/project
is necessarilly coupled with
incremental
IT
is
fixed on
to
products
way.
In
different
itself contributes
estates.
to
The approach
reinterpretable
is
and not
a
site.
PRINCIPLE 4
IMPACT
SHOULD BE
IMMEDIATELY FELT, BUT NOT FRAGMENTED.
Rehabilitation should
the
same time,
It
is necessary
plans:
123
be
tackling inmediate
respond and
keep pace with
issues,
a broader
to develop a feed-back process
but
at
process.
between
two
a)
An inmediate action
b)
A framework identifying broader
In
context,
this
inmediate
impact
re-establish
plan,
actions
first
in order to
potential of successive
PRINCIPLE 5
but
actions
maximun
and
involvement
and
should have
lever resident
credibility,
goals.
long term
also
to be
contain
derived
the
clear
from them.
'
ACTIONS AND SOLUTIONS SHOULD BE DEALT WITH
COMPREHENSIVELY,
BY IDENTIFYING THEIR POTENTIAL COMPLEMENTARY LINKS.
While
any action
linkages
to
other
complementary
divised
as
in
well.
main
goals
should
be
links are established,
such
a way that it
The
purpose
given the
intervention,
the
should be problem-specific,
linkage
to
examined.
heighten the
out
is
be
secondary goals
impact
financial constraints.
be worked
Whenever
the action should
adresses those
is to
its potential
of
any
Nevertheless,
the
support
of
mediating opportunities.
PRINCIPLE 6
ACTIONS
SHOULD
SUPPORT
THE
BUILDING
OF
MEDIATING
OPPORTUNITIES IN PHYSICAL AND INSTITUTIONAL TERMS.
While
actions
order
a)
to
a
contributing
heighten
b)
be
individual
involve residents, these should
adress
activity
should accrued direct
or
collective
the
creation
intermediate
component
of
of
groups).
the
site,
thus
for
group
anchors
patterns,
that
can
local control patterns,
resident-developed and/or managed,
necessary
in
also,
either
territorial
benefits
support
Actions
from other
parties
should be devised as
not
withstanding
(LHA,
neighborhood
training and
learning
124
forming
for
opportunities
capable
a
based
community
organization.
PRINCIPLE 7
TO
AS
WELL,
SHOULD INVOLVE 'HORIZONTAL' LINKAGES
ACTIONS
LOCAL NEIGHBORHOOD INSTITUTIONS AND ORGANIZATIONS.
that
Actions
project's neighborhood should be
physical
level
problems
that
coordination
as,
institutional
can
the
to
within
opportunities
a joint
the
the
should
as
through
and
transportation
of
commercial
sharing
site,
project
adress
issues such
(CDC's) on
streets,
social
etc.
goal,
second-stage
as a
have
and a basic working organization
as well
established,
either at
effort,
establishment
should be seen
this
once credibility
support
in
centers, dealing with borders
Nevertheless
the
level. Actions
pattern or
street
networks;
collection
services or
be adressed
encouraged,
local organizations
with
linkage
trash
or
with
mediating opportunities
establish
been
some visible improvements, that
can
the move.
PRINCIPLE 8
REDUCE
HOUSING
AUTHORITIES
SHOULD
LOCAL
INTERVENTION BUT OFFER MAXIMUM SUPPORT
The
does
different parties have to deliberate
what.
A
delegation of
what they
have
in,
to
are
at
tenats
controls should
the start of
in the
can become
be
who
establish
be
divised
forming
;
be
the process and
long run.
done
in
a
Site
according to
specific
it a private realty firm
a tenant
management
eventualy, establishing alternative
125
and
DIRECT
according to what residents potentials and
incremental way,
willingness
THEIR
tenure
options
stepping
corporation,
systems.
or
Given
the
scope
of the problem
however,
offers a field of
cation.
In
that
-- because
They all aim at
of its mode--
termediate organizations
in
an approach
and
specifi-
in-
the Public Housing realm.
lies a strength;
and build
be
to rehabilitation
supports the emergence of
Policy of the 80's needs to
local communities
to respect
further exploration
Each of them
their further development one thing has to
in mind:
The Urban
limitations of time,
principles are necessarily general.
these basic
kept
and the
recognize that
within
and urban practice needs
upon it.
126
127
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