Report of the National Advisory (Kerner Report 1967)

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APPENDIX C: EXCERPTS FROM PRESIDENT LYNDON B. JOHNSON'S ADDRESS TO THE NATION ON CIVIL DISORDERS, JULY 27, 1967

My fellow Americans:

We have endured a week such as no Nation should live through: a time of violence and tragedy.

For a few minutes tonight, I want to talk about that tragedy -- and I want to talk about the deeper questions it raises for us all.

I am tonight appointing a special Advisory Commission on Civil Disorders.

Governor Otto Kerner, of Illinois, has agreed to serve as Chairman, Mayor John Lindsay, of New York, will serve as Vice Chairman. Fred R. Harris, senator from Oklahoma; Edward W. Brooke, United States senator from Massachusetts; James C. Corman, U. S. Representative from California, 22nd District, Los Angeles; William M. McCulloch, the U. S. Representative from the State of Ohio, the 4th District; I. W. Abel, the President of the United Steel Workers; Charles B. Thornton, the President, Director and Chairman of the Board of Litton Industries, Inc.; Roy Wilkins, the Executive Director of the NAACP; Katherine Graham Peden, the Commissioner of Commerce of the State of Kentucky; Herbert Jenkins, the Chief of Police, Atlanta, Georgia.

The Commission will investigate the origins of the recent disorders in our cities. It will make recommendations -- to me, to the Congress, to the state Governors, and to the Mayors -- for measures to prevent or contain such disasters in the future.

In their work, the Commission members will have access to the facts that are gathered by Director Edgar Hoover and the Federal Bureau of Investigation. The FBI will continue to exercise its full authority to investigate these riots, in accordance with my standing instructions, and continue to search for evidence of conspiracy.

But even before the Commission begins its work; and even before all the evidence is in, there are some things that we can tell about the outbreaks of this summer.

First -- let there be no mistake about it -- the looting, arson, plunder and p1llage which have occurred are not part of a civil rights protest. There is no American right to loot stores, or to burn buildings, or to fire rifles from the rooftops. That is crime -- and crime must be dealt with forcefully, and swiftly, and certainly -- under law.

Innocent people, Negro and white, have been killed. Damage to property -- owned by Negroes and whites -- is calamitous. Worst of all, fear and bitterness which have been loosed will take long months to erase.

The cr1m1nals who committed these acts of violence against the people deserve to be punished -- and they must be punished. Explanations may be offered, but nothing can excuse what they have done.

There will be attempts to interpret the events of the past few days. But when violence strikes, then those in public responsibility have an immediate and a very different job: not to analyze, but to end disorder.

That they must seek to do with every means at their command: through local police, state officials, and, -- in extraordinary circumstances where local authorities have stated that they cannot maintain order with their own resources-then through Federal power that we have limited authority to use.

I have directed the Secretary of Defense to issue new tra1n1ng standards for riot control procedures immediately to National Guard units across the country. Through the Continental Army Command, this expanded training will begin immediately. The National Guard must have the ability to respond effectively, quickly, and appropriately, in conditions of disorder and violence.

Those charged with the responsibility of law enforcement should, and must, be respected by all of our people. The violence must be stopped: quickly, finally, and permanently.

It would compound the tragedy, however, if we should settle for order that is imposed by the muzzle of a gun.

In America, we seek more than the uneasy calm of martial law. We seek peace based on one man's respect for another man -- and upon mutual respect for law. We seek a public order that is built on steady progress in meeting the needs of all of our people.

Not even the sternest police action, nor the most effective Federal Troops, can ever create lasting peace in our cities.

The only genuine, long-range solution for what has happened lies in an attack -- mounted at every level -- upon the conditions that breed despair and violence. All of us know what those conditions are: ignorance, discrimination, slums, poverty, disease, not enough jobs. We should attack these conditions-not because we are frightened by conflict, but because we are fired by conscience. We should attack them because there is simply no other way to achieve a decent and orderly society in America.

...

This is not a time for angry reaction. It is a time for action: starting with legislative action to improve the life in our cities. The strength and promise of the law are the surest remedies for tragedy in the street.

But laws are only one answer. Another answer lies in the way our people will respond to these disturbances.

There is a danger that the worst toll of this tragedy will be counted in the hearts of Americans; in hatred, in insecurity, in fear, in heated words which will not end the conflict, but prolong it.

So let us acknowledge the tragedy; but let us not exaggerate it.

Let us look about tonight. Let us loot at ourselves. We will see these things:

Most Americans, Negro and white, are leading decent, responsible and productive lives.

Most Americans, Negro and white, seek safety in their neighborhoods and harmony with their neighbors.

Nothing can destroy good will more than a period of needless strife and suspicion between the races.

Let us condemn the violent few. But let us remember that it is law-abiding Negro families who have really suffered most at the hands of the rioters. It is responsible Negro citizens who hope most fervently -- and need most urgently -- to share in America's growth and prosperity.

This is not the time to turn away from that goal.

To reach it will require more than laws; more than dollars. It will take renewed dedication and understanding in the heart of every citizen.

I know there are millions of men and women tonight who are eager to heal the wounds that we have suffered; who want to get on with the job of teaching and working and building America....

. . . I call upon every American to search his own heart.

To those who are tempted by violence, I would say this: Think again. Who is really the loser when violence comes? Whose neighborhood is made a shambles? Whose life is threatened most?
If you choose to tear down what other hands have built,

-You will not succeed;

-You will suffer most from your own crimes;

-You will learn that there are no victors in the aftermath of violence.

The apostles of violence, with their ugly drumbeat of hatred, must know that they are now heading for disaster. And every man who really wants progress or justice or equality must stand against them and their miserable virus of hate.

For other Americans, especially those in positions of public trust, I have this message:

Yours is the duty to bring about a peaceful change in America. If your response to these tragic events is only "business as usual " -- you invite not only disaster, but dishonor.

My fellow citizens, let us go about our work. Let us clear the streets of rubble and quench the fires that hatred set. Let us feed and care for those who have suffered at the rioter's hands -- but let there be no bonus or reward or salutes for those who have inflicted that suffering.

Let us resolve that this violence is going to stop and there will be no bonus to flow from it. We can stop it. We must stop it. We will stop it.

And let us build something much more lasting: faith between man and man, faith between race and race. Faith in each other -- and faith in the promise of beautiful America.

Let us pray for the day when "mercy and truth are met together; righteousness and peace have kissed each other." Let us pray -- and let us work for better jobs and better housing and better education that so many millions of our own fellow Americans need so much tonight.

Let us then act in the Congress, in the city halls. and in every community, so that this great land of ours may truly be "one Nation under God -- with liberty and justice for all."

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APPENDIX D: BIOGRAPHICAL MATERIALS ON COMMISSIONERS

OTTO KERNER, CHAIRMAN -- Governor of Illinois, 1961- ; Springfield, Ill. Born August 15, 1908, Chicago, Ill. A.B., Brown University, 1930; Trinity College, Cambridge University, 1930- 31; JD., Northwestern University, 1934. Attorney, Chicago, 1934-47; U.S. District Attorney, Northern District of Illinois, 1947-54; County Judge, Cook County, 1954-61. Illinois National Guard, 1934-41; 1946-54, advancing from Private to Captain, 9th Infantry Division, European Theater of Operations; Field Artillery School, Fort Sill, Oklahoma; and 32nd Infantry Division, Pacific Theater of Operations, 1941-46, retiring as Major General; Soldier's Medal, Bronze Star, Army Commendation, Ribbon, Presidential Unit Citation (34th Field Artillery Battalion).

JOHN V. LINDSAY, VICE CHAIRMAN -- Mayor of New York City, 1966- . Born November 24, 1921, New York City. A.B. Yale University, 1944; LL.B., Yale Law School, 1948. Attorney, New York City, 1945-1955; Executive Assistant to the Attorney General of the United States, 1955-1957; elected U.S. Representative, 86th Congress, 1958; reelected to the 87th, 88th and 89th Congresses. U.S. Navy, 1943-46. Member Council on Foreign Relations; Citizens Committee for Children of New York City, Inc.; former board member, Freedom House; former member Executive Committee, Association of the Bar of the City of New York; elected to the Yale Corporation, 1964; Elected Chairman of the Political Committee of the NATO Parliamentarians Conference, 1964.

I. W. ABEL -- President, United Steelworkers of America (AFL-CIO), 1965- ; Pittsburgh, Pa. Born August 11, 1908, Magnolia, Ohio. Canton, Ohio Business College. Employed by American Sheet and Tin Plate Company and Timken Roller Bearing Co., Canton, 1922-38; Staff of United Steelworkers, 1938-42; Director, Canton-Massillon Area, District 27 of the United Steelworkers, 1942-53; secretary-Treasurer, United Steelworkers, 1953-65.

EDWARD W. BROOKE -- U. S. Senator from Massachusetts, 1966- ; Newton Centre, Mass. Born October 26, 1919,Washington, D. C. B.S., Howard University, 1941; LL.M., Boston University Law School, 1950 (editor of Law Review, 1946-48); Honorary Degrees: Doctor of Public Administration, Northeastern University, Boston, 1964; Doctor of Laws, Emerson College, Boston, 1965; Doctor of Laws, George Washington University, Washington, D. C., 1967; Doctor of Science, Lowell Technological Institute, Lowell, Mass., 1967. Attorney, Boston, 1948-61; Chairman of Finance Commission, City of Boston, 1961- 62; Attorney General of the Commonwealth of Massachusetts, 1982-68; elected to the U.S. Senate November 8, 1968; Republican. Five years active duty, U.S. Army, World War II; captain. Infantry, European Theater of Operations; Bronze Star, Combat Infantryman's Badge; served with "Partisans" in Italy. Fellow, American Academy of Arts and Sciences; Fellow, American Bar Association for excellence in law, 1963; Trustee, Boston University; Chairman of the Board, The Opera Company of Boston, Inc.; Member, American Veterans of World War II (AMVETS), National Council of Boy Scouts of America, National Board of Boys' Clubs of America, Board of Overseers of Harvard College, National Sponsors Committee of The Clarke School for the Deaf and Hampton Institute, and member of the American, Massachusetts and Boston Bar Associations. Recipient of one of the Ten Outstanding Young Men of Greater Boston awards of the Junior Chamber of Commerce, 1952; Distinguished Service Award, AMVETS; National Judge Advocate, AMVETS, 1955-57, and Massachusetts Department Commander AMVETS 1954-55. Recipient of The Spingarn Medal, NAACP, 1967, and the Charles Evans Hughes Award, National Conference of Christians and Jews, 1967.

JAMES C. CORMAN -- U S. Representative from California, 22nd District, 1960- ; Van Nuys, Calif. Born October 20, 1920, Galena, Kansas. B.A., University of California at Los Angeles, 1942; LL.B., University of Southern California, 1948. Attorney, Los Angeles, 1948-50 and 1952-57; Member of the Los Angeles City Council, 1957-60; elected November 8, 1960 to the 87th Congress; reelected to the 88th, 89th, and 90th Congresses. Democrat. U.S. Marine Corps, 3rd Marine Division, at Bougainville, Guam, and Iwo Jima, 1942-46; subsequent service 1950-52. Member of the Methodist Church, Lions International, American Legion, Veterans of Foreign Wars, Elks; the American, California, Los Angeles and San Fernando Valley Bar Associations, Los Angeles Community Relations Conference. Awards from the Jewish Federation-Council of Greater Los Angeles for "outstanding service in fostering good will and understanding among religious and racial groups," and from the California Congressional Recognition Plan, Claremont College for "exemplary service" on the House Judiciary Committee.

FRED R. HARRIS -- U.S. Senator from Oklahoma, 1964- ; Lawton, Okla. Born November 13, 1930, Walters, Okla. B.A. in political science and history, University of Oklahoma, 1952; LL.B. "with distinction," University of Oklahoma, 1954. Practiced law, 1954-64; Member of Oklahoma State Senate, 1956-64; elected to U.S. senate November 3, 1964, to fill unexpired term of Robert S. Kerr; reelected November 8, 1966, for term ending January 3, 1973. Democrat. Recipient, Oklahoma Junior Chamber of Commerce "Outstanding Young Man of Oklahoma" award, 1959; one of the U. S. Jaycee "Ten Outstanding Young Men" awards, 1965.

HERBERT JENKINS -- Chief of Police, Atlanta, Georgia, 1947- . Born 1907, Lithonia, Georgia. Atlanta public schools and Atlanta Law School. Joined Atlanta Police Department, 1931; elected Chief of Atlanta Police Department, 1947. President International Association of Chiefs of Police, 1965; Member, Attorney General's Advisory Panel on Grants, 1964; Baptist Church; Past Worshipful Master of Atlanta Masonic Lodge; charter member of Northside Atlanta Kiwanis Club; Board of Directors of the Atlanta Boys Club and other civic organizations. Awards include: 1962 Outstanding Citizen Award by Jewish War Veterans of United States of America, Atlanta Post 112; Atlanta Jaycee Good Government Award, 1962; Alpha Chapter of Delta Kappa Gamma Society award for leadership in maintaining public education, 1962; Silk Hat Award by Northside Atlanta Kiwanis Club, 1962; Boys Club Bronze Keystone for Long and Devoted Service to Boys by the Boys Clubs of America, 1963.

WILLIAM M. McCULLOCH -- U.S. Representative from the State of Ohio, 4th District, 1947- ; Piqua, Ohio. Born November 24, 1901, Holmes County, Ohio. LL.B. Ohio State University, 1925; Honorary LLD., Ohio Northern University; Member Ohio House of Representatives six terms, serving as Republican leader 1936-39, and as Speaker for three terms; Elected to 80th Congress, November 4, 1947, reelected to each succeeding Congress. Republican. Veteran, World War II. Member, American Political Science Association; Recipient, Congressional Distinguished Service Award, APSA, and the Distinguished Alumni Award, College of Wooster, Wooster, Ohio.

KATHERINE GRAHAM PEDEN -- Commissioner of Commerce, State of Kentucky, 1963-67; Hopkinsville, Ky. Born January 2, 1926, Hopkinsville, Ky. Traffic Department, Radio Station WHOP, Hopkinsville, 1944-49; Vice President and Director, WHOP, 1949- ; Owner-President, Radio Station WNVL, Nicholasville. President, National Federation of Business and Professional Women, 1961-62; Member, the Defense Advisory Committee of Women in the Service (DACOWITS); the National Advisory Council of the Small Business Administration; the Governor's Commission on the Status of Women -- Kentucky; Board of Directors, Kentucky Chamber of Commerce; the American Industrial Development Council; the Southern Industrial Development Council; President, Kentucky Federation of Business and Professional Women, 1955-56; Director, Mental Health Association, and Co-Chairman, Western state Hospital Chapel Fund, 1956- ; Trustee, Business and Professional Women's Foundation, 1958- ; Member, Kentucky Federation of Business and Professional Women, Kentucky Broadcasters Association, First Christian Church of Hopkinsville, and Hopkinsville Chamber of Commerce, 1951- ; Recipient, Woman of the Year Award, Hopkinsville, 1951.

CHARLES B. THORNTON -- Chairman of the Board and Chief Executive Officer, Litton Industries, Inc., 1953- ; Los Angeles, Calif. Born July 22, 1913,Knox County, Texas. B.C.S., Columbus University, 1937; Honorary D.C.S., George Washington University, 1964; Honorary Jur D., Texas Technological College, 1957. Director of Planning, Ford Motor Company, 1946-48; Vice President and Assistant General Manager, Hughes Aircraft Company, Culver City, Calif., 1948-53; Vice President, Hughes Tool Company, 1948-53; President, Litton Industries, 1953-61. Colonel, USAF, World War II; Consultant to Commanding General, 1946; Distinguished service Medal, Legion of Merit, Commendation Ribbon with two oakleaf clusters. Director and member of the executive committee: United California Bank, Western Bancorporation, Times Mirror Company, (1959-67); Director: Union Oil Company of California, Lehman Corporation, General Mills, Inc. (1963-67); Director and Executive Committee Member, Cyprus Mines, Inc.; Director, MCA, Inc.; Director and Finance Committee Member, Trans World Airlines, Inc.; Trustee, University of Southern California; Trustee, Harvey Mudd College of Science and Engineering; Member, California Institute Associates; Member, University of Southern California Associates; Member, The Visiting Committee, Harvard Business School; Board of Governors, Welfare Federation of Los Angeles (1960-63); National Professional and Civic Organizations: Member, The Business Council; Defense Industry Advisory Council to the Department of Defense; Air Force Academy Advisory Council; Director, National Committee for International Development; Trustee, Committee for Economic Development; Trustee, National Security Industrial Association; Member, West Coast Advisory Group of American Management Association; prior affiliation with numerous other local and national civic and governmental bodies.

Introduction

Development cooperation officially started in the United States with President Truman's inaugural address in 1949. Truman declared that the fourth point of U.S. foreign policy was a "bold new programme" to provide assistance to developing countries. With singular prescience, he predicted: "We are here embarking on a venture that extends far into the future. We are at the beginning of a rising curve of activity, private, governmental and international, that will continue for many years to come." One year later Congress passed the Act for International Development, with an initial appropriation of $35 million.

Nobody in the United States used the term "development cooperation" then, and, indeed, nobody uses it today. "Development assistance" has been the term of choice, but in common discourse and political practice, aid for development has been submerged in a package of programmes lumped together as "foreign aid."

U.S. foreign aid programmes did not start in 1950. Forerunners of aid to development include post-war emergency relief through UNRWA, military aid to Greece and Turkey in 1947 in the first manifestations of the cold war and, above all, the Marshall Plan for European recovery in the late 1940s and early 1950s. The record of European nations in using U.S. aid effectively in their rebuilding became, in fact, both a positive and a negative factor in later consideration of aid -- positive in providing an example of the successful use of aid funds, but negative in suggesting that development aid should achieve equally rapid results.

Over the years, foreign aid has had two distinctive components: military aid and economic aid, the latter embracing humanitarian relief, economic support (essentially balance-of-payments assistance) and development assistance. Since the first year or two, all economic aid, whatever its objective, has been administered by a single government agency, known first as the Mutual Security Agency, then as the International Cooperation Agency and since 1961 as the U.S. Agency for International Development (USAID).

***

In 1950, at the peak of the Marshall Plan, the public information section of the Economic Cooperation Administration, which administered reconstruction aid to Europe, had about 100 employees. Paul Hoffman, the first ECA administrator, argued that "to run the ECA without a strong information arm would be as futile as trying to conduct a major business without sales, advertising, or customer relations departments." Indeed, the ECA turned out an enormous amount of publicity, running its own radio and television programmes, taking journalists on tours, meetings with editors and so on.

In 1955, the public information office staff had shrunk to 16, and a provision in the aid legislation (the Dworshak Amendment) prohibited the agency from using its funds for "the dissemination within the United States of general propaganda" in support of the aid programme.

Faced with growing criticism, the Eisenhower Administration in 1958 convened a national citizens' assembly to arouse public support for foreign aid under the title "Conference on Foreign Aspects of National Security." Using the White House itself as a base, and led by a charismatic entrepreneur (Eric Johnston, president of the Motion Picture Association of America [MCA]), the conference was a two-day jamboree, with the leaders of both political parties, the heads of the major religious denominations, leaders or organised business and trade unions, and scores of NGO executives. A new super-NGO emerged, the Committee for International Economic Growth (CIEG), which launched a vigorous public information campaign.

The 1960s

Public Opinion

The 1960s was named the "decade of development" by the United Nations; it produced new development institutions such as the UNDP and the Inter-American Development Bank; and President Kennedy launched the Peace Corps and the Alliance for Progress, a major development programme for Latin America. General public opinion on aid, however, hardly changed at all. Asked in 1965 the same question as in 1958 ("In general, how do you feel about foreign aid?"), the public responded with remarkable consistency: 57 per cent for, 33 per cent against, 10 per cent no opinion.

The annual battle over aid levels continued in Congress. On this subject, the public was asked in 1965: "President Johnson has proposed that Congress set aside $3.4 billion for aid to countries in other parts of the world, or about 3 per cent of the total annual budget. Would you like to see this amount increased or decreased?" The answers: 6 per cent for increased aid, 49 per cent for decreased aid, 33 per cent for maintaining the level of aid.

Organisational Voices

By 1963 the CIEG had collapsed, following Eric Johnston's death and the change of party control at the White House. Efforts were made, with a tacit White House blessing, to build new support groups -- e.g. a Citizens' Committee for International Development in 1961, and a National Committee for International Development in 1964 -- but both failed.

By the end of the 1960s, however, impetus for a new public support organisation took on renewed momentum. With strong leadership and funding from private foundations (especially the Ford and Rockefeller Foundations), the Overseas Development Council (ODC) was created to serve as a think tank on development issues and policy, and as a disseminator of facts and ideas. Respected for the professional competence of its staff, the ODC has operated successfully ever since, cultivating opinion makers of various kinds, including journalists and the staffs of members of Congress. It has without doubt been the leading centre of policy-oriented pro-development thinking in the United States.

Government Action

During this period, USAID itself was becoming increasingly conscious of the politics of foreign aid. Its presentations to Congress carefully broke down aid expenditures (for services and goods) by state and congressional district, thus demonstrating the beneficial economic impact of aid spending on the domestic economy. Major contracts were signed with U.S. universities to provide technical assistance overseas, thus creating a continuing interest in foreign assistance within the educational community. Many NGOs also became USAID contractors.

-- Public Support for International Development, edited by Foy Colm, Helmich Henry

ROY WILKINS -- Executive Director, National Association for the Advancement of Colored People, 1955- ; New York, New York. Born August 30, 1901, St. Louis, Mo. A.B., University of Minnesota, 1923. Managing Editor, Kansas City Call, 1923-31; Assistant Secretary, NAACP, 1931-49; Acting Secretary, NAACP, 1949-50; Administrator, NAACP, 1950; Editor, Crisis Magazine, 1934-49. Recipient, the Spingarn Medal, NAACP, 1964.

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APPENDIX E: WITNESSES APPEARING AT HEARINGS OF THE COMMISSION, AUGUST 1- NOVEMBER 7, 1967

ADAMY, CLARENCE G.
President, National Association of
Food Chains

ADDONIZIO, HUGH J.
Mayor, Newark,
New Jersey

ATCHISON, LEON
Administrative Assistant to
Congressman John Conyers, Jr.

BACHRACH, W. H.
Mayor, Cincinnati,
Ohio

*BAILEY, SAMUEL
Vice-President, Mississippi State
Conference of Branches,
National Association for the
Advancement of Colored People

BAKER, JOHN A.
Assistant Secretary of Agriculture;
accompanied by Lynn Daft

BATTLE, MARK
Administrator,
Bureau of Works Program,
Department of Labor

BENNETT, LERONE
Historian, Senior Editor,
Ebony Magazine

BERRY, THEODORE M.
Director, Community Action Program,
Office of Economic Opportunity;
accompanied by: Ben Zimmerman,
William C. Lawrence, Donald K. Hess,
and James H. Hiller

BONNE, RICHARD W.
Executive Director,
Citizens Crusade Against Poverty

BRIGGS, PAUL W.
Superintendent of Schools,
Cleveland, Ohio

BULLOCK, PAUL
Associate Research Economist,
Institute of Industrial Relations,
University of California at Los Angeles

BUNTING, JOHN R.
Executive Vice President,
First Pennsylvania Banking and Trust Co.,
Philadelphia, Pennsylvania

BURRELL, BERKELEY
President, National Business League;
accompanied by: Matthew Clark and
Henry Miller

CAMPBELL, R. J.
Assistant to the City Manager,
Cincinnati, Ohio

CAPOLOVITZ, DAVID
Bureau of Applied Social Research,
Columbia University

*CARMICHAEL, STOKELY
Ad Hoc Committee of
Black Militants

CARTER, LISLE C., JR.
Assistant Secretary for Individual and
Family Services, U.S. Department of
Health, Education and Welfare

CASSELL, FRANK H.
Assistant to the Administrative
Vice President,
Inland Steel Corporation

CAVANAGH, JEROME P.
Mayor, Detroit, Michigan;
accompanied by: Robert P. Roselle;
Richard Strichartz; Herbert Loche;
John Nichols, Anthony Ripley;
Fred J. Romanoff; Ron Hewitt;
Conrad Mallett, Ass!. to the Mayor;
Bernard Winckoskl; Richard Marks;
Norman Drachler, Sup!. of Schools;
Ray Girardin, Police Commissioner;
Alvin Harrison, Citizen Rep.,
Neighborhood Legal services;
Thomas Angott, Member, Fire
Commission, Rev. Robert Potts,
Grace Episcopal Church; and
Philip Rutledge, Director,
Mayor's Committee on Resources

CERVANTES, ALFONSO J.
Mayor, St. Louis, accompanied by:
Rev. Lucius Cervantes, S. J.

CHAMBERS, ERNIE W.
Negro, community leader,
Omaha, Nebraska

CHRISTENSON, GERALD W.
Executive Director,
President's Council on Youth
Opportunity, accompanied by:
E. Lester Levine, Bruce Terris, and
John Stewart

CHRISTOPHER, WARREN M.
Deputy Attorney General;
Vice Chairman of the
Governor's Commission on
the Los Angeles Riots

CLARK, KENNETH
Psychologist and Social Scientist;
President, Metropolitan Applied
Research Center, Inc., New York

COLEMAN, RICHARD G.
Director, Better Housing League of
Greater Cincinnati, Inc.

*COX, CARLTON
Ad Hoc Committee of
Black Militants

DANZIG, LOUIS
Housing and Urban Renewal Director,
City of Newark, New Jersey

DODSON, DAN W.
Director, Center for
Human Relations Community Studies,
New York University

*DONALDSON, IVANHOE
Ad Hoc Committee of
Black Militants

DRACHLER, NORMAN
Superintendent of Schools,
Detroit, Michigan

EMERY, JOHN C., JR.
Judge, Recorder's Court, Detroit;
Legal Aid and Defender Association,
Detroit

ENGLE, BYRON
Director, Office of Public safety,
Agency for International Development,
Department of State

*EVERS, CHARLES
Field Director, Mississippi State
Conference of Branches,
National Association for the
Advancement of Colored People

FANTINI, MARIO D.
Program Officer,
Division of Public Education,
Ford Foundation

FULLER, DEWEY C.
Director, Economic
Development and Employment,
Urban League of Greater Cincinnati,
Ohio

GANS, HERBERT J.
Senior Research Sociologist,
Center for Urban Education,
New York

GARDNER, JOHN W.
Secretary of Health,
Education and Welfare

GARRETT, ERNEST
Member, Board of Education,
Newark, New Jersey

GELSTON, GEORGE
Adjutant General,
Maryland National Guard

GIACCHINO, ALDO
Planning Officer,
City of Newark,
New Jersey

GINSBERG, MITCHELL I.
Commissioner of Social services,
New York City

G1NZBERG, ELI
Hepburn Professor of Economics,
Columbia University; Member,
National Manpower
Policy Task Force, 1962

GIRARDIN, RAY
Police Commissioner,
Detroit, Michigan

GOLDFARB, RONALD
Consultant to the
Commission

GREEN, ALFRED L.
Executive Director,
New York State Division
of Employment

*GREGORY, DICK
Comedian, Lecturer

GROPPI, JAMES
Milwaukee, Wisconsin;
accompanied by: Father Patrick Flood,
Dwight Benning, and James Pierce

*GUYOT, LAWRENCE
Chairman, Mississippi
Freedom Democratic Party

*HALL, WILLIAM
Ad Hoc Committee of
Black Militants

HANSAN, JOHN E.
Director,
Community Action Commission,
Cincinnati, Ohio

HARDY, DAVID
New York Daily News

*HATCHER, RICHARD
Mayor, Gary, Indiana

HENDERSON, VIVIAN
Economist;
President, Clark College,
Atlanta, Georgia

*HILL, NORMAN
Associate Director,
A. Philip Randolph Institute

HILL, RODERIC L
Major General (Ret.)
Former Adjutant General
State of California

HOLLIS, HARRIS W.
Director of Operations,
Office of Deputy Chief of Staff
for Military Operations,
Department of Army,
Washington, D.C.

HOLMAN, CARL M.
Deputy Staff Director,
U. S. Commission on Civil Rights

HOOVER, J. EDGAR
Director,
Federal Bureau of Investigation

HOWE, HAROLD II
U. S. Commissioner of Education;
accompanied by: Charles H. Smith

JACQUES, TRUMAN
Manager, Management
service Center, Watts Section
of Los Angeles, California

JOHNSON, EARL JR.
Director, Legal Services Program,
Office of Economic Opportunity

*JORDAN, VERNON
Director,
Voter Education Project,
Southern Regional Council, Inc.

KAIN, JOHN F.
Professor of Economics
Harvard University

*KARENGA, RON
Chairman, US

KING, MARTIN LUTHER, JR.
President, Southern Christian
Leadership Conference

LEARY, HOWARD R.
Police Commissioner,
New York

*LEWIS, JOHN
Field Representative,
Southern Regional Council, Inc.

LIEBOW, ELLIOT
Acting Chief,
Special Projects Section,
Mental Health Study Center,
National Institute of Mental Health

LOMBARD, WILLIAM M.
Chief of Police,
Rochester, New York

LUMSDEN, ARTHUR R.
Executive Vice President,
Chamber of Commerce,
Hartford, Connecticut

MAIER, HENRY W.
Mayor, Milwaukee, Wisconsin;
accompanied by: James Newcomb
and George Whlttow

MALAFRONTE, DONALD
Administrative Assistant to
Mayor Addonizio

MANGUM, GARTH L.
Research Professor of Economics,
George Washington University

MARSHALL, KENNETH E.
Vice President for
Communlty Affairs,
Metropolitan Applied Center, Inc.,
New York

MATTHEWS, WILLIAM
Assistant Presiding Judge,
Municipal Court,
Cincinnati, Ohio

McCANDLESS, WILLIAM M.
Federal Co-Chairman,
Ozark Regional Commission

McCLELLAN, H. C.
President, Management
Council for Merit Employment,
Training and Research

McCONE, JOHN A.
Chairman, Governor's
Commission to Investigate
the 1964 Watts Riot

McFARLAND, KENNETH
Superintendent of Schools,
Topeka, Kansas

McKELDIN, THEODORE B.
Mayor, Baltimore,
Maryland

*McKINNIE, LESTER
Ad Hoc Committee of
Black Militants

*McKISSICK, FLOYD
National Director,
Congress of Racial Equality

MEANY, GEORGE
President, AFL-CIO;
accompanied by: Nat Goldfinger,
Donald Slaiman, Andrew Biemiller,
Julius Rotham, and Thomas E. Harris

MEECHAM, CHARLOTTE, MRS.
National Representative,
Police Community Corrections
Program, American Friends
Service Committee

MILLER, HERBERT J.
Chairman, President's
Commission on Crime for
the District of Columbia;
Former Assistant U. S.
Attorney General, Criminal Division,
Department of Justice

MOGEY, JOHN
Professor Sociology,
Boston University

MURPHY, PATRICK V.
Director of Public Safety,
District of Columbia

ODELL, CHARLES E.
Director, U.S. Employment
Service, Bureau of
Employment Security,
U.S. Department of Labor

OOSTDYCK, HAROLD
Director, New York
Urban league Academy,
New York City

PERSKY, JOSEPH
Harvard University

POLLACK, STEPHEN J.
Special Assistant to
the Attorney General

PURDY, WILSON E.
Director of Public Safety,
Dade County, Florida

QUARLES, BENJAMIN
Professor of History
Morgan State College,
Baltimore, Maryland

RANKIN, LEE J.
Former General Counsel
Warren Commission

REISS, ALBERT
Professor of Sociology,
University of Michigan

REYNOLDS, C.
Acting Director,
Cincinnati Human Relations
Commission

RODMAN, HYMAN
Merrill-Palmer Institute,
Detroit, Michigan

ROMNEY, GEORGE
Governor of Michigan; accompanied
by: Col. Frederick A. Davids,
Major General Clearence Schnipke,
Major General Cecil Simmons,
Robert Danhof, Charles Oriebeke,
and Charles Harmon

ROSS, ARTHUR
Commissioner of Labor Statistics,
U.S. Department of Labor

RUTTENBERG, STANLEY H.
Assistant Secretary for Manpower,
U.S. Department of labor

SANDERS, J. STANLEY
Director of Summer Projects,
Westminster Neighborhood
Association,
Watts, Los Angeles, Calif.

SCHIFF, NORMAN
Corporation Counsel,
New York

SHERIDAN, THOMAS R.
Chairman, Committee on
Administration of Justice
American Bar Association

SHRADE, PAUL
Director, Western Region Six,
United Auto Workers;
Member, Executive Board,
United Auto Workers

SHRIVER, SARGENT
Director, Office of
Economic Opportunity

SILLS, ARTHUR
Attorney General,
State of New Jersey

SMITH, CHARLES H.
Office of Education,
Department of Health,
Education and Welfare

SMITH, WILLIAM H. T.
Former Chief of Police,
Syracuse, N.Y.
Director, Inspection Division,
Department of Housing and
Urban Development

SPINA, DOMINICK H.
Police Director
Newark, New Jersey

STALKS, LARRIE
Director, Department of
Health and Welfare,
City of Newark, New Jersey

STILL, TIMOTHY
President, United
Community Corporation,
Newark, New Jersey

*STOKES, CARL B.
Mayor, Cleveland,
Ohio

SULLIVAN, LEON H.
Chairman of the Board,
Opportunities Industrialization
Center, Inc.,
Philadelphia, Pennsylvania

SUMMER, ALEXANDER
Former President,
National Association of
Real Estate Boards;
accompanied by: Edwin Stoll

TAMM, QUINN
Executive Director,
International Association of
Chiefs of Police

TAYLOR, RALPH H.
Assistant Secretary,
Department of Housing and
Urban Development

TAYLOR, WILLIAM L.
Staff Director,
U.S. Commission on Civil Rights
THOMAS, PIRI
Author,
New York, New York

TITUS, FRANKLIN
Superintendent of Schools,
Newark, New Jersey

TREATT, JAMES
Human Rights Director,
Newark, New Jersey

TURNER, BAILEY
Treasurer, United Community
Black Organization,
Cincinnati, Ohio

VANCE, CYRUS R.
Former Deputy Secretary of
Defense on National Guard Matters

VINSON, FRED JR.
Assistant U. S. Attorney
General, Criminal Division

WEAVER, ROBERT C.
Secretary,
Department of Housing and
Urban Development

WEST, CALVIN
City Councilman,
Newark, New Jersey

WHELAN, THOMAS J.
Mayor, Jersey City,
New Jersey

WILKINS, ROGER W.
Director,
Community Relations Service,
Department of Justice

WILSON, JAMES Q.
Professor of Government,
Harvard University, lecturer,
Harvard-Mil Center for
Urban Studies

WILSON, WINSTON P.
Major General Chief
National Guard Bureau

WIRTZ, WILLARD W.
Secretary of labor;
accompanied by:
Stanley H. Ruttenberg

WRIGHT, KENNETH
Vice President and Chief
Economist, life Insurance
Association of America

WRIGHT, MARION
legal Director, NAACP
legal Defense and Education Fund,
Jackson, Mississippi

YLVISAKER, PAUL
Director, New Jersey
Department of Community
Relations, accompanied by:
Col. Kelly, Chief of State
Police; Oliver Lofton,
Director of legal Services;
Stanley Van Ness, Governor's
Counsel; John Spinelli,
Press Secretary to Governor;
and James Blair, Department
of Community Affairs;
Timothy Still, President,
United Community Corp.;
David Sullivan, Assistant
Director, Plainfield Human
Relations Commission;
Charles Miller, Vice-Chairman,
Plainfield Human Relations
Commission; and Don MacDonald,
Department of Community Affairs

YORTY, S. W.
Mayor, Los Angeles,
California

* Witnesses at Special Hearings

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APPENDIX F: CONSULTANTS, CONTRACTORS AND ADVISERS

ADLER, JAMES
Attorney
Los Angeles, California

AILES, STEPHEN
Attorney, Former Secretary of
the Army

AMERICAN INSURANCE ASSOCIATION
New York, New York

AMSTERDAM, ANTHONY G.
University of Pennsylvania
Law School

ASTOR, GERALD M.
Look Magazine

BAGDIKIAN, BEN H.
Rand Corporation

BAILEY, DOUGLAS
Washington, D.C.

BATT, JOHN
College of Law
University of Kentucky

BAZELON, DAVID T.
Attorney
New York, New York

BELLOW, GARY
Bakersfield, California

BENNETT, LERONE, JR.
Ebony Magazine

BISBING, LEONARD
Milwaukee, Wisconsin

BLAKEY, G. ROBERT
Law School
University of Notre Dame

BLUMBERG, ABRAHAM S.
Department of Sociology
City University of New York

BLUMENSON, MARTIN
Alexandria, Virginia

BLUMSTEIN, ALFRED
Institute of Defense Analysis
Washington, D.C.

BODNER, JOHN, JR.
Attorney
Washington, D.C.

BOOKER, JAMES
New York, New York

BOONE, RICHARD W.
Executive Director
Citizens' Crusade Against Poverty
Washington, D.C.

BORDUA, DAVID J.
Department of Sociology
University of Illinois

BRADLEY, THOMAS
Councilman
Los Angeles, California

BRANDSTATTER, ARTHUR F.
Director, School of Police
Administration and Public Safety
Michigan State University

BUREAU OF APPLIED SOCIAL
RESEARCH
New York, New York

CAHILL, THOMAS J.
Chief of Police
San Francisco, California

CAMPBELL, ANGUS
Director, Survey Research Center
University of Michigan

CAPLAN, NATHAN
Department of Sociology
University of Michigan

CAPRON, WILLIAM M.
The Brookings Institution

CARROW, MILTON M.
Attorney
New York, New York

CATTON, BRUCE
American Heritage Publishing Company

CENTER FOR COMMUNITY STUDIES
Nashville, Tennessee

CHAMPION, HALE
Director
Boston Redevelopment Agency

CHAYES, ABRAM
Harvard Law School

CHAYES, ANTONIA
Consultant
Action for Boston Development, Inc.

COLEMAN, JAMES
Department of Social Relations
Johns Hopkins University

COLM, GERALD
National Planning Association
Washington, D.C.

CONWAY, JACK
Executive Director
Industrial Union Department,
AFL-CIO

CRISCI, RALPH F.
Project Director, The Legal Aid Society
Cincinnati, Ohio

DAHL, RAYMOND A.
Former Inspector
Milwaukee Police Department
Staff, Southern Police Institute
Louisville, Kentucky

DEITCHMAN, SEYMOUR J.
Chevy Chase, Maryland

DERSHOWITZ, ALAN M.
Harvard Law School

DOWNS, ANTHONY
Chicago, Illinois

DUHL, LEONARD
Department of Housing and Urban
Development
Washington, D.C.

DUMONT, MATTHEW
National Institute of Mental Health
Bethesda, Maryland

ECKER-RACZ, LASZLO, L.
Washington, D.C.

ECKSTEIN, OTTO
Department of Economics
Harvard University

EMORY, FRED
Center for Advanced Studies
In the Behaviorial Sciences
Stanford, California

ENGLE, BYRON
Director, Office of Public Safety
Agency for International Development

ESTAVER, PAUL E.
Assistant Program Director
Office of Law Enforcement Assistance
Department of Justice

FAIN, JIM
Editor
The Dayton Dally News

FEINSINGER, NATHAN
University of Wisconsin Law School

FITZPATRICK, JAMES F.
Attorney
Washington, D.C.

FLAMING, KARL
Director, Milwaukee Urban
League Study

FLEMING, HAROLD C.
President
Potomac Institute
Washington, D.C.

FOGELSON, ROBERT
Department of History
Columbia University

FORER, LOIS G.
Community Legal services
Incorporated
Philadelphia, Pennsylvania

FRANKLIN, JOHN HOPE
Chairman, Department of History
University of Chicago

FULLER, HILTON M., JR.
Executive Director
Police-Community Relations Committee
Atlanta Bar Association

GAIN, CHARLES
Chief of Police
Oakland, California

GANS, HERBERT
Center for Urban Education
New York, New York

GARMIRE, BERNARD L.
Chief of Police
Tucson, Arizona

GATES, DARYL F.
Deputy Chief
Los Angeles Police Department

GELSTON, GEORGE M. (Major General)
Adjutant General
State of Maryland

GIACCHINO, ALDO
Newark City Planner

GIBSON, WILLIAM M.
Director, Law and Poverty Project
Boston University School of Law

GILMORE, JOHN
New York City Police Department

GINSBERG, MITCHELL I.
Human Resources Administrator
New York, New York

GIRARDIN, RAY
Former Commissioner
Detroit Police Department

GOLDFARB, RONALD L.
Attorney
Washington, D.C.

GOLDSTEIN, HERMAN
University of Wisconsin Law School

GORDON, KERMIT
President
The Brookings Institution

GRIMSHAW, ALLEN D.
Department of Sociology
Indiana University

GROSS, MARTIN l. (Colonel, Ret.)
Former Public Safety Advisor
Agency for International Development

GUNTHER, JOHN J.
U.S. Conference of Mayors
Washington, D.C.

HAMILTON, RANDY
Institute for Local Self-Government
Berkeley, California

HARE, NATHAN
Washington, D.C.

HARRIS, LOUIS
Louis Harris Associates
New York, New York

HILL, RODERIC (Major General, Ret.)
Former Adjutant General
State of California

HINE, RICHARD P.
Reporter
The Dayton Daily News

HIRSCH, WERNER
Institute of Government and
Public Affairs
University of California, Los Angeles

HOLZMAN, JAMES C.
Director, Department of Public Safety
Multnomah County, Oregon

INDIK, BERNARD P.
Department of Psychology
Rutgers University

INGERSOLL, JOHN
Chief of Police
Charlotte, North Carolina

INSTITUTE FOR SOCIAL RESEARCH
Ann Arbor, Michigan

INTERNATIONAL ASSOCIATION OF
CHIEFS OF POLICE
Washington, D.C.

ISAACS, HAROLD
Department of Political Science
Massachusetts Institute of Technology

JAFFE, SANFORD
Executive Director
Governor's select Commission on
Civil Disorders
State of New Jersey

JANOWITZ, MORRIS
Department of Sociology
University of Chicago

JOHNSON, JAMES
Department of Political Science
Princeton University

JONES, J. PAUL
Grand Rapids City Planner

JONES, KENNETH
Washington, D.C.

KAGEL, DAVID L
Attorney
New York, New York

KAMISAR, YALE
University of Michigan Law School

KAPLAN, MARSHALL
Marshall Kaplan, Gans & Kahn
San Francisco, California

KELLEY, CLARENCE M.
Chief of Police
Kansas City, Missouri

KIMBALL, WARREN Y.
Manager
National Fire Protection Association

KOTCHE, EDWIN J.
Circuit Court Judge
Rockford, Illinois

LANG, KURT
Department of Sociology
New York University at Stoneybrook

LEARY, HOWARD R.
Police Commissioner
New York, New York

LEE, EUGENE C.
Director, Institute of Governmental
Studies
University of California, Berkeley

LE FAVE, WAYNE R.
School of Law
University of Illinois

LEFCOWITZ, MYRON
Institute for Research on Poverty
University of Wisconsin

LOHMAN, JOSEPH
Dean, School of Criminology
University of California, Berkeley

LEWIS, WILFRED
The Brookings Institution

LIEBOW, ELLIOTT
Special Projects Section
National Institute of Mental Health
Bethesda, Maryland

LOFTON, OLIVER
Administrative Director
Newark Legal Services Project

LOFTUS, ROBERT
Helm-Loftus
Washington, D.C.

LOMBARD, WILLIAM M.
Chief of Police
Rochester, New York

LONGAN, JOHN
Chief Public safety Adviser
Agency for International Development

LOWE, JOHN
Detroit City Planning Commission

LOWRY, ROYE L.
Bureau of the Budget

LYNCH, JOHN P.
Investment Executive
Pittsburgh, Pennsylvania

MADL, JOHN D.
Deputy Superintendent of Police
Chicago, Illinois

MALONEY, JOHN C.
Medill School of Journalism
Northwestern University

MANGUM, GARTH
Co-Director, Center for
Manpower Policy Studies
George Washington University

MARGOLIS, HOWARD
Institute for Defense Analysis
Washington, D.C.

MARSHALL, KENNETH
Metropolitan Applied Research
Corporation
New York, New York

MARTYN, KENNETH
Vice President for Academic Affairs
California State College at Los Angeles

MARX, GARY T.
Department of Social Relations
Harvard University

MASOTTI, LOUIS J.
Department of Political Science
Case-Western Reserve University

MATCH INSTITUTION
New York, New York

MATTICK, HANS W.
Associate Director, Center for
Studies In Criminal Justice
The Law School
University of Chicago

McCORD, WILLIAM
Department of Sociology
Rice University

McDONAlD, ROBERT
Grand Rapids United Community
Services

McNAMARA, EDMUND L
Commissioner of Police
Boston, Massachusetts

MEIER, AUGUST
Department of History
Kent State University

MICHIGAN LAW REVIEW
Ann Arbor, Michigan

MORSELL, JOHN
National Association for the
Advancement of Colored People

MOYNIHAN, DANIEL P.
Director, Joint Center for Urban studies
Massachusetts Institute of Technology

MURPHY, PATRICK V.
Director of Public safety
Washington, D.C.

NATIONAL LEAGUE OF CITIES
Washington, D.C.

NETSCH, DAWN CLARK
School of Law
Northwestern University

NEUSTADT, RICHARD C.
Director, Kennedy Institute of Politics
Harvard University

NEWMAN, JASON T.
Washington, D.C.

OAKS, DALLIN
The Law School
University of Chicago

O'HAGAN, JOHN T.
Chief, Fire Department
New York, New York

PAIGE, JEFFERY
Department of Sociology
University of Michigan

PALMERI, BENEDICT
Police Department
Rockford, Illinois

PATRICELLI, ROBERT
Minority Counsel
Senate Subcommittee on
Employment, Manpower and Poverty

R. L. POLK & CO.
Detroit, Michigan

POLLITT, DANIEL H.
School of Law
University of North Carolina

PORTER, DOROTHY B.
Librarian, Moorland Collection
Howard University

PRICE, DON K.
Dean, John F. Kennedy
School of Government

PRIEST, H. SAMUEL
Former President
Board of Police Commissioners
St. Louis, Missouri

PUBLIC ADMINISTRATION SERVICE
Chicago, Illinois

PURDY, WILSON E.
Director of Public safety
Dade County, Florida

PYE, KENNETH A.
School of Law
Duke University

QUAST CARL
Milwaukee City Planner

RAMON, F. C.
Chief of Police
Seattle, Washington

RADELET, LOUIS
School of Police Administration and
Public Safety
Michigan State University

REDDIN, THOMAS
Chief of Police
Los Angeles, California

REISS, ALBERT J.
Director, Center for Research on
Social Organization
University of Michigan

REMINGTON, FRANK J.
School of law
University of Wisconsin

ROCHFORD, JAMES
Deputy Superintendent
Chicago Police Department

RODMAN, HYMAN
The Merill Palmer Institute

ROE, ELEANOR J.
Law School
University of Wisconsin

ROEMER, DEREK
Project Director, Special Projects
Section
National Institute of Mental Health
Bethesda, Maryland

ROSE, ELIZABETH
New Haven, Connecticut

ROSSI, PETER
Chairman, Department of
Social Relations
Johns Hopkins University

RUBIN, IRVING J.
Director
Detroit Transportation and land Use
Study

RUDWICK, ELLIOTT
Department of Sociology
Southern Illinois University

RUTH, HENRY S., JR.
Law School
University of Pennsylvania

SANDMAN, HENRY J.
Director of Public safety
Cincinnati, Ohio

SCAMMON, RICHARD M.
Director
Elections Research Center
Government Affairs Institute

SEALY, LLOYD
Assistant Chief Inspector
New York City Police Department

SEARS, DAVID
Department of Social Relations
Harvard University

SCHIFF, ARTHUR
Community Action Agency
New York, New York

SCHUMAN, HOWARD
Department of Sociology
University of Michigan

SCHWARTZ, HERMAN
School of law
State University of New York
at Buffalo

SHELDON, RICHARD
Ford Foundation

SIMULMATICS CORPORATION, THE
New York, New York

SKOLNICK, JEROME H.
Senior Social Scientist
American Bar Foundation
Chicago, Illinois

SMELSER, NEIL
Department of Sociology
University of California, Berkeley

SPIEGEL, JOHN P.
Director, Lemberg Center for
the Study of Violence
Brandeis University

STEIN, JOHN
University Research Corporation
Washington, D.C.

STEINER, GILBERT Y.
The Brookings Institution

STERNLlEB, GEORGE
Department of Business Administration
Rutgers University

STRECHER, VICTOR
Director, law Enforcement Study Center
Washington University, St. Louis

STURZ, HERBERT J.
Director, Vera Institute
of Criminal Justice

SVIRIDOFF, MITCHELL
Ford Foundation

SWEITZER, ROLAND
Inspector
Maryland Police Department

SYSTEMETRICS, INC.
Washington, D.C.

TAYLOR, CORNEFF R.
Director, Department of Research
Milwaukee Urban League

THREATT, JAMES
Director, Newark Human Relations
Commission

TOBIN, JAMES
Department of Economics
Yale University

TRANSCENTURY CORPORATION
Washington, D.C.

TURNER, RALPH
Chairman, Department of Sociology
University of California, Los Angeles

UNIVERSITY OF PENNSYLVANIA
LAW REVIEW
UNIVERSITY RESEARCH
CORPORATION
Washington, D.C.

VORENBERG, JAMES
Harvard Law School

WADE, RICHARD
Department of History
University of Chicago

WALD, PATRICIA M.
Attorney
Washington, D.C.

WALD, ROBERT L.
Attorney
Washington, D.C.

WALKER, DOUGLAS
City Editor
The Dayton Dally News

WALKER, REV. LUCIUS
Milwaukee, Wisconsin

WASSERMAN, ROBERT
Staff Assistant, School of Police
Administration and Public Safety
Michigan State University

WEISMAN, LAWRENCE I.
Attorney
New York, New York

WEISS, JONATHAN
Mobilization for Youth, Inc.

WHITE, RICHARD S., JR.
University Research Corporation

WILLIS, CHARLES R., JR.
New York. New York

WILSON, JAMES Q.
Department of Government
Harvard University

WILSON, ORLANDO W.
Former Superintendent of Police
Chicago Police Department

WINNICK, LOUIS
Ford Foundation

WOODWARD, C. VANN
Department of History
Yale University

YANG, PAUL
City Planner
Plainfield, New Jersey

YARMOLINSKY, ADAM
Harvard Law School

YLVISAKER, PAUL
Commissioner, Department of
Community Affairs
New Jersey

YOUNG, ARTHUR F.
Chief. Housing Division
Bureau of the Census

YOUNGER, IRVING
School of Law
New York University

(Partial list)

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APPENDIX G: STAFF ASSISTANTS, SECRETARIES AND SUPPORT

Kathleen M. Alder
Audree S. Alexander
Lucille Alston
Deloris Ann Artis
Bambia G. Benham
Vivian S. Bullock
Doris N. Chandler
Doris Williams Claxton
Annie M. Clay
Florence M. Coffey
Catherine Cyrus
Patricia J. Daniels
Betty Y. Diggs
Muriel L. Edwards
Camille P. Elias
Annie Y. Ephraim
Ruth A. Fisher
Mary T. Fox
Dorothy Gooding
Barbara Jo Grace
Larry O. Green
Carolyn P. Greene
Clarence C. Griffin
Jacklyn D. Harris
Vivian W. Harrison
Josephine Hawkins
Sara A. Himes
Marianne K. Holifield
Patricia Horan
Julia E. Hughes
Clinton Jackson
Jerome Jackson
Ronald F. Jeffries
Gail M. Johnson
RoseAnn Johnson
Florence G. Jones
Juanita S. Jones
Willie Mae Jones
Barbara A. Kirk
E. Roberta Lesh
Thomasenia C. Love
Helen A. Lusk
Amanda McDuffie
Anita J. McDwain
John F. McLawhorn
Sylvia R. Miller
Orinda R. Nelson
Mary T. O'Keefe
Christine M. O'Malley
Nema J. Parker
Wendell Parker
Hazel C. Pitt
Carolyn E. Pleasant
Joyce Roberson
Mary Jo Robinson
Zellene W. Saunders
Carrie R. Scott
Marie Shoupe
Ironia M. Smith
Richard E. Spencer
Phyllis C. Tate
Richard L. Thomas
Lois V. Toliver
Margaret E. Triplett
Garnette M. Turner
Vivian E. Tyler
Gretel L. Uhl
Doris C. Warf
Deloris L. West
Frances D. Williams
Olivia C. Williams
Rosalyn A. Williams
Loretta M. Young

[admin]

APPENDIX H: REPORT TO THE COMMISSION BY THE ADVISORY PANEL ON PRIVATE ENTERPRISE, JANUARY 29, 1968

THE NATIONAL ADVISORY COMMISSION ON CIVIL DISORDERS
1016 16th Street, N.W.
Washington, D. C. 20036

January 29, 1968

REPORT TO THE COMMISSION BY THE ADVISORY PANEL ON PRIVATE ENTERPRISE

At the request of the Commission, we have considered the appropriate role of the profit-making free enterprise system in helping to alleviate the causes of civil disorders, which are the subject of the Commission's work. In our meetings and deliberations during the past two months we have taken as our starting point the evidence presented to the Commission on the causes of the disorders and the alternative courses of action which might be pursued to deal with those causes. We have also sought the advice of representative members of the business community and others both within and outside of government.

We conclude that maximum utilization of the tremendous capability of the American free enterprise system is a crucial element in any program for improving conditions, in both our urban centers and our rural poverty areas, which have brought us to the present crisis.

The maintenance of public order is primarily the responsibility of the public sector, but the private sector is the mainspring of the national economy and consequently of the economic wellbeing of our citizens. Free enterprise, with its system of incentives and rewards for hard work, ability, ingenuity and creativity. has made this nation strong and produced the highest standard of living the world has ever known. Under the spur of competition. the discipline of business management produces maximum benefit from the funds and other resources available.

More than eighty-five percent of the current annual gross national product of over 800 billion dollars is attributable to the private business sector. Eighty-four percent of the nation's 73 million civilian workers are employed by 11.5 million separate private. profit-making employers, of which more than 1.3 million are corporations. Even five percent of the total number of private employers would represent more than 500,000 enterprises. The involvement of even that number would constitute a masa1ve, pluralistic and truly national approach to the national problem of civil disorder and the closely related problem of chronic unemployment and underemployment, particularly among Negroes.

For these reasons the nation in the past has repeatedly relied upon the private sector to assist in solving complex national problems. In the field of defense, contracts with private companies for materiel, supplies and services amounted to 34 billion dollars in fiscal year 1966. In the exploration of outer space, contracts of the National Aeronautics and Space Administration with private companies amounted to more than four billion dollars in fiscal year 1966.

The concept that the private sector must also be involved in overcoming the challenge of racial ghettos in urban areas and poverty in rural areas is now widely accepted, both within and outside the government. In his State of the Union Message on January 17, 1968, the President called for "a new partnership between government and private industry to train and to hire the hard-core unemployed persons." The Congress has made similar declarations in a number of acts, including the Economic Opportunity Act, the basic charter of the War on Poverty.

Dr. Kenneth B. Clark, the eminent Negro psychologist and educator who testified before the Commission, stated in a recent article in answer to the question "What role can business play in finding answers to rioting?":

Business and industry are our last hope. They are the most realistic elements of our society. Other areas in our society -- government, education, churches, labor -- have defaulted in dealing with Negro problems.

No fewer than thirty of the witnesses who have appeared before the Commission referred to a role for the private sector in meeting those urban problems which contribute to civil disorder.

We believe that these widely-shared sentiments about the role of the business community are more than mere rhetoric. The private sector has shown its concern and capacity for making a contribution in the fields relevant to the urban crisis. In many cases it has done so in collaboration with government, and in many cases it has done so entirely independently of government. A partnership of profit-making businesses and local governments, organized labor, and religious groups has recently been organized in The Urban Coalition, and there are numerous examples of involvement by individual companies in useful projects of various types.

Some of the areas in which there is evidence that the private sector could make a contribution are:

Job Training and Employment: The on-the-job training program under the Manpower Development and Training Act of 1962 has involved more than two thousand private employers. The Job Corps has involved more than 20 private companies as managers of urban training centers. Numerous similar undertakings by private companies have been catalogued by the National Association of Manufacturers as part of its STEP (Solutions to Employment Problems) program, a national clearinghouse for such endeavors; and by the National Industrial Conference Board in the proceedings of its conference on "Corporate Urban Programs -- An Investment in Economic Progress and Social Order," held on January 10, 1968, In New York City.

Housing: Joint ventures with public housing authorities to reconstruct low-Income apartments, housing development corporations to receive industrial and banking Investments, and "instant renewal," utilizing prefabricated units, have been pioneered by a number of companies.

Economic Development: A consortium of seven of the largest life insurance companies has been created to extend loans in ghetto areas where investment risks were previously considered too great. several companies have established plants in various poverty areas to employ and train local residents. "Operation Bootstrap," through tax and other incentives, has drawn some 600 companies Into investments in new plants in Puerto Rico since 1942, has resulted in the rapid development of the Puerto Rican economy and a dramatic increase in the standard of living, and now serves as a model for the development of other areas of the Western Hemisphere. As a by-product, "Operation Bootstrap" has also reversed the net immigration of Puerto Ricans to the continental United states, which was an immigration from a rural poverty area to urban centers much like the massive outflow of the rural poor to American cities in recent decades.

Negro Entrepreneurship: In order to support and develop needed managerial capabilities in the Negro community, a number of small business programs have relied upon the private sector. The Small Business Administration made almost 3,500 loans during fiscal year 1967under its Economic Opportunity Loan Program, many in participation with private lending institutions and many as guarantor of private loans. A privately sponsored non-profit group, the Interracial Council for Business Opportunities, has utilized volunteer executives of successful businesses to provide managerial assistance to small businesses. The ICBO has assisted approximately 1,000businessmen since 1963 and has created a private, bank-guaranteed loan fund. A Department of Commerce program has so far stimulated creation of four trade associations for counselling and other assistance to Negro small businessmen. Some companies have created private community development corporations which provide managerial assistance to Negro entrepreneurs.

Education: A number of companies have provided basic literacy and mathematical skill training to their own disadvantaged employees and in some cases to those of other companies, under contract. A number of profit-making Job Corps contractors have pioneered rapid literacy techniques.

Attitudinal Change: Inclusion of Negroes In national advert1s1nghas been spurred by the Advertising Council, and many companies are taking affirmative steps to improve the attitudes of their employees and customers through in-plant literature as well as through advertising policy.

While business and industry are making substantial efforts in these and other fields; we believe that much more can and should be done. Many more companies will undoubtedly enter these fields on a volunteer basis, In some cases because they recognize that the price of Inaction may well be continued tension and disorder and the ultimate breakdown of the tranquility which underlies our entire social fabric and economic growth. And this process might, and should, be accelerated by exhortation from government and business leadership.

But we believe that a truly massive number of companies could be induced to participate only if appropriate monetary incentives are provided by the Federal government to defray the unusual costs of participation. We also believe that opportunities for business involvement, on a substantially broader scale than at present, exist primarily in the areas of employment and job training and in economic development, in the sense of the establishment of plants and other facilities in poverty areas, both urban and rural. Housing, Negro entrepreneurship, education, and attitudinal changes are also important areas in which the private sector might well make significantly greater contributions, but in the time available to us we have attempted to deal only with the highest priority areas and urge that further study be given to these additional subjects.

It should be noted that our optimism about potential business involvement, in both jobs for the unemployed and economic development, is grounded upon continuation of essentially the same level of economic growth the Nation has experienced in the past eighteen months. Business interest is, obviously, affected by general economic conditions as well as by a specific monetary incentive.

The Commission has received ample testimony that unemployment and underemployment are among the most persistent and serious grievances among many Negroes in the central cities which have experienced disorders in recent years. At the same time, job training and job development are the daily concern of profit-making enterprises and consequently are areas to which private companies can bring the greatest skill and ingenuity.

It is estimated that some 500,000 unemployed persons may be characterized as "hard core" in the sense that they lack eighth grade literacy and mathematical skills, have only intermittent work histories at most, and often lack motivation to hold and perform a job. A substantial proportion of this group is Negro, male, and between the ages of approximately 18 and 25. The evidence before the Commission suggests that it is this group of late teenagers and young adults who are often the initial participants in civil disorders. A slum employment study by the Department of Labor in 1966 indicated that, as compared with an overall unemployment rate in the United States of 3.8 percent, the unemployment rate among nonwhite 16 to 19-year-old males was 26.5 percent, and among nonwhite 16 to 24-year-old males was 15.9 percent. Data collected by the Commission in 20 cities which experienced racial disorder in 1967, including the most serious disorders, indicate that Negro males between the ages of 15 and 25 predominated among the rioters, that more than 20 percent of the rioters were unemployed, and that when they were employed, they tended to be underemployed in the sense that their employment was intermittent and in low status, unskilled jobs.

Experience over recent years with various experimental public and private employment techniques demonstrates to our satisfaction that on-the-job training by private employers offers a highly successful method of insuring ultimate placement of trainees, 88 compared with vocational school programs. The latter often fall to attract the hard-core unemployed person, who is likely to have been a dropout from public school and is generally poorly motivated toward public educational institutions of any type. Institutional programs also leave unresolved the difficult problem of matching the trainee to the subsequent job. Public employment programs often tend to provide unsatisfying, dead-end jobs.

In our recommendations we propose to deal primarily with the 500,000hard-core unemployed who have not yet been reached or placed in permanent employment by existing programs. By so zeroing-in, we do not intend to ignore the remaining approximately million and a half jobless whom the U.S. Department of Labor estimates also "need help" with regard to employment. Nor do we intend to ignore the approximately 10 million underemployed, 7.5million of whom work full-time and earn less than $3,200 annually, which is the Federally-defined poverty level for a family of four.

Many members of these latter two groups, the unemployed who are not "hard core" in the sense of extreme disadvantage, and the underemployed, would undoubtedly also benefit from the kind of training which our recommendations would encourage for the hard core. We would urge continuation and expansion of existing programs which are designed to reach these other two groups. In addition, we recommend consideration of extension to these two groups of the program we recommend for the hard core, perhaps with modifications.

We do not intend with our program for the hard-core disadvantaged to stimulate the "leap-frogging," by the hard-core unemployed, of the other two groups. Certainly the already employed must not lose their jobs in order to make room for the hard-core unemployed. Only a program which both upgrades the already employed and thereby creates openings for the hard core, or which creates new openings for the hard core, can satisfy this need.

The other two groups are often disadvantaged by the interrelated problems of outright racial discrimination against those who are nonwhite, and unrealistic and unnecessarily high minimum qualifications for employment or promotion, which often have the effect of discriminating. For these groups, as for the hard-core, business must consider whether a criminal record should be a bar to the particular job, whether a high school diploma is an inflexibly necessary requirement, or whether a written examination is appropriate. During World War II, industry successfully employed large numbers of the previously unemployed who were disadvantaged, by lowering standards such as these and by restructuring work patterns so that the job fit the level of available skill, not vice versa.

That experience, and many others as well, amply demonstrate that racial and other stereotypes are false. The usual educational and other measures used for the population as a whole, when applied to the disadvantaged often ignore considerable intelligence and skill which are utilized instead in activity, often illegal, in the complex "system" of the ghetto streets. The existing Federal, state and local laws against discrimination employment should be observed and effectively but reasonably enforced.

We are realistic about the problems involved in motivating and training these hard-core youngsters and young adults. Experience with a number of programs, such as the Job Corps, the Neighborhood Youth Corps, and several Manpower Development and Training projects, demonstrates clearly that training and motivating this group is considerably more costly than in the case of either the labor force with which private enterprise normally operates or the trainees whom current Federally-assisted on-the-job training programs have generally tended to reach. Accordingly, we are convinced that the incentive necessary to induce a broad base of the free enterprise system to hire and train the hard-core unemployed will have to be increased correspondingly.

Almost by definition, the new employee recruited from the hard-core will require substantially more basic job training than is provided today for unskilled workers who are not disadvantaged. Although this is a function and a source of cost which employers have generally undertaken themselves, under the Manpower Development and Training Act of 1962 the Federal government has created an incentive for training by defraying a portion of such costs.

Far more serious for the employer are the many supportive services which the hard-core require in order to make them amenable to employment and job training and the discipline of the work experience. In many cases the new employee recruited from the hard-core will require basic educational training, which employers have rarely been required to provide under normal labor market circumstances. In addition, the new employee will usually require counselling in regard to his willingness to work and in regard to aspects of his work habits which the employer normally takes for granted: for example, in dress, appearance. social relationships, money management, transportation, hygiene and health. These supportive services will therefore constitute a source of special cost to the employer.

Tardiness and absenteeism are major problems for this group, who have previously found little social or economic benefit from conformity with the usual standards of commercial life. A number of experiments, including the substantial experience of the Job Corps training centers, indicates that it is difficult to motivate hard-core youths to remain on the job for more than a few weeks. The productivity of trainees at any level is often minimal, but at this level, and with considerable disruption through tardiness, absenteeism and turnover, the cost to the employer can, again, be especially burdensome.

These special costs, of supportive services and loss of productivity, will have to be adequately reimbursed by government in order to permit and stimulate business and industry of all types and sizes to hire and train members of the hard-core unemployed. Estimates of the total annual cost to the employer per hard-core trainee vary from $3000 to $5000, including $3000 or more in wages at the higher of the minimum wage or the prevailing wage, training costs, and supportive service costs, and assuming that marginal productivity is achieved during the training period In return for the employer's payment of wages.

It must be recognized that a sure method for motivating the hard-core unemployed has yet to be devised. One basic minimum Is already apparent from experimental programs: the job must not appear to the bard-core person to be a "dead-end" job. Since by definition he would not be eligible for even an entry-level job, he must be given job training. It must be made clear to him from the outset that his satisfactory performance at the entry level will result not only in continued employment after the training period but also in an opportunity for advancement, ideally through a clearly defined "job ladder" with step increases in both pay and responsibility. The fastest-growing area of private sector labor demand is in the service industries, rather than in manufacturing; yet the problem of giving a sense of dignity to entry-level jobs is greatest in the service industries.

We believe that, spurred by an adequate monetary incentive, many private employers can and will utilize sufficient ingenuity to meet these and other difficulties of motivating, training and retaining the hard-core in useful and productive jobs. The task is by no means an easy one, but we believe the private sector is capable of devising individual solutions adapted to the individual employee and company. A truly massive attempt has not yet been made to induce business to try this approach to the unemployment problem. We believe that it offers a realistic possibility of success.

Even with an adequate monetary incentive to the employer, it must also be recognized that many of the hard-core may never be employable by private enterprise, either because they are not reached by the normal processes of the labor market or even stepped-up recruitment techniques, because once reached they are reluctant to accept employment, because the cost of training them exceeds even the most liberal reimbursement, or because they are unable to achieve an adequate level of productivity. For this most severely disadvantaged group, other alternatives will have to be considered.

Effective administration of a monetary incentive is almost as important in attracting widespread business interest as the amount of the incentive itself. Monetary incentives to business might be provided in a number of ways. The government could guarantee business against various unusually high risks from investment in ghetto areas or, as has been attempted by the Office of Economic Opportunity in a few experimental cases, against the higher turnover and other loss resulting from employment of the hard core. The most direct technique for compensating business is a contract mechanism, under which reimbursement for costs in the particular case is made by a governmental agency to the private contractor. An indirect incentive can be provided through the tax system, either by way of a credit against net tax or through an additional expense deduction for a particular cost or through accelerated depreciation for particular investments or some combination of these three.

We are convinced that large numbers and many different types of business and industrial companies will participate in hiring and training the hard-core unemployed only if an incentive technique is devised which i8sas simple and automatic as possible.

Experience since 1962 In the on-the-job training program under the Manpower Development and Training Act 1nd.lcates that the government contract mechanism, In advance of employment and training, is slow In attracting business Interest. In part this is due to the need In a contracting system for a substantial promotional effort to bring the program to the attention of a large number of employers. In part it is due to the reluctance of many employers, once they learn of the program, to engage in protracted negotiations with a many-layered structure of local, state and Federal authorities, all of whom must approve the contractual arrangements. Employers are also extremely reluctant to assume the burdensome paperwork requirements and corresponding additional overhead costs of any Federal contracting procedure. Executives are often apprehensive that a government contract will necessarily Involve some loss of management prerogatives over the productive process, especially because government may seek to dictate In detail the content of the training to be given 'to employees. These factors appear to discourage even the largest Industrial firms, but their negative impact is, naturally, magnified manyfold for medium and small-sized employers, who might otherwise absorb, In the aggregate, large numbers of the hard-core unemployed. It is possible that a simplified direct compensation technique could be devised which would minimize the negative features of contracting, but it is likely that most businessmen would still avoid this type of Involvement with government.

We believe that the single most powerful inducement for broad involvement of private enterprise in job training and job development lies in the use of a tax incentive. Neither a guarantee technique nor a contracting mechanism offers the same appeal to businessmen In enterprises of all sizes as does a tax Incentive. Businessmen are convinced from past experience that tax incentives will be relatively simple, automatic and as self-enforcing as a government program can be, even as compared with a simplified direct compensation method. Accordingly, we recommend the following program of incentives to business and Industry:

1. Tax Incentive for Hard-Core Employment.

First, the hard-core unemployed should be defined and identified by a government agency, either the Federal-State Employment Services or other local agencies, such as the community action agencies, whichever may In particular localities develop the capacity to reach out effectively to the hard-core unemployed. We do not believe that business can generally be expected to perform this recruitment function efficiently within the ghetto.

Second, an unemployed person once certified as hard-core should be issued a green card or other similar identifying document which he would present to an employer.

Third, for each new employee furnishing a green card added to his payroll, the employer would in turn receive a substantial credit against his corporate income tax for the year In which the employee was employed. The sole limitation upon the employer would be that he not cUsm1saexisting employees In order to hire green card employees.

In order to stimulate efforts by the employer to devise techniques for motivating green card employees to remain on the job, the tax credit would not be allowed to the employer unless the employee were retained for at least six months. If he remained for six months, the employer would be entitled to a tax credit in the amount of 75 percent of the wages and fringe benefits paid to the employee during that period. From the outset, the employer would be required to pay the higher of the minimum wage or the prevailing wage for the occupation in question.

To encourage continued retention of the employee, the employer would be entitled to a credit against tax in the amount of 50 percent of the wages and fringe benefits paid to the employee during the second six months of employment, and 25 percent of the wages and fringe benefits paid during the second year of employment. For example, an employer paying the minimum wage of $1.60 per hour, or $3,328 per year to a full-time employee, and no fringe benefits, would receive for the first six months of employment $1,248 in credit against his net corporate income tax. If the employee were retained for the second six months, the employer would receive an additional $832 or a total of $2,080 as a credit against tax for the first year. If the employee remained for the entire two-year period, the employer would receive an additional $832 in credit against his corporate tax for the second year. The employer's total credit for the employee over a two-year period would thus amount to $2,912. Of course, over the two-year period the employer will incur the cost of training and other supportive services and the cost of wages and fringe benefits paid and would therefore also receive the usual deduction from gross income for these costs as business expenses.

The premise of the plan is that, given the tax benefit only if the employee is motivated to remain on the job, the employer will attempt to create the conditions necessary to keep the employee motivated, through the provision of training, job ladders, and the supportive services which have been described above as so necessary to motivation and retention of the hard-core unemployed. In order to avoid abuse of the premium which the green card confers upon the job applicant, no green card holder would be entitled to use the card for more than two years of cumulative employment and in no event for a series of less-than- six-month periods with different employers. Should an employee leave an employer voluntarily for the second time, the Employment Service or other referring agencies would be required to place him at the bottom of their referral file.

As in the case of the existing 7 percent tax credit for investment in new equipment, the maximum credit allowable against the corporate employer's tax arising from employment of the hard-core unemployed would be limited to $25,000 plus 50% of the amount of the company's tax exceeding $25,000. So that no employer would receive a competitive advantage, credit would be allowable only for a limited percentage of the total number of the company's employees, on a sliding scale. An employer of ten or fewer employees could receive a tax credit for no more than 50% of his employees as green card holders; employers of ten to one-hundred employees could receive credit for no more than 25%; and those employing over one hundred no more than 15%.

An advantage of the tax credit route is that only companies which are profitable and therefore owe Federal income tax are eligible for the incentive credit. Profitable companies are in the best position to provide meaningful and continuing employment.

Provision should be made for exemption of green card holders from mandatory labor union membership until they have become permanent, full-time employees.

2. Tax Incentives for Investment in Poverty Areas, Both Urban and Rural.

We recommend a parallel tax credit, in addition, for the location and renovation of plants and other business facilities in urban and rural poverty areas, as already defined jointly by several Federal departments and agencies. The new investment credit would be available for investments in rural as well as urban poverty areas in order to begin a national effort to improve rural economic conditions and thereby attempt to stem the massive migration from such areas to the urban centers which has been so marked in recent decades.

The existing incentive tax credit for investment in new equipment, first enacted in 1962, applies regardless of the area in which the investment is made. But the existing credit does not apply to investment in real property or in plant. We recommend that, for investment in poverty areas, the existing credit be increased substantially enough to achieve this purpose and extended to investments in real property and plant, whether for acquisition or construction of new property or the renovation of existing property. We also recommend toot plant and equipment in such areas be eligible for rapid amortization, within as little as five years. These incentives would be designed to attract to the poverty areas the type of industrial and commercial development which would create new jobs and would also stimulate further economic benefit within the disadvantaged community surrounding the enterprise.

The incentives would assist existing businesses in poverty areas, including Negro-owned businesses, as well as new businesses. By stimulating new jobs in urban poverty areas the incentives would also help to overcome the often severe difficulties residents of those areas now experience in obtaining transportation to suburban commercial and industrial plants.

The credit for poverty area investment would not, however, be dependent upon employment of the hard-core unemployed. An employer eligible for the credit for poverty area investment would also be eligible, if he employed green card holders, for the credit for hard-core employment. The two credits are designed to meet separate needs and different costs to investors and employers and therefore should be cumulative. Like the credit for employment of the hard-core, the investment credit should be limited to $25,000 of tax and 50 percent of the tax exceeding $25,000.

Protections would have to be provided against subsidizing "run-away" plants from urban areas, although large companies should not be discouraged from expanding their operations into rural areas. Protections would also be necessary to avoid abuse of the credit by automated operations which involve few employees.

3. Local Joint Clearinghouse Groups.

We recommend that industry, organized labor, and various civic organizations be encouraged to create joint local clearinghouse groups to exchange experience gained with employment of the hard-core unemployed and with investment in poverty areas. A major benefit of utilizing the tax incentive technique is permitting each enterprise to adapt its program to the particular conditions of its business and location and the particular problems and strengths of the labor market in that location. However, there is much to be gained from the cross-fertilization of the many experimental programs now being carried on by business and industry and the many additional experiments which would be stimulated by the tax incentives we have outlined. Mixed local groups would facilitate a useful interchange of experience and know-how. In any event, these local groups would have no authority to approve or disapprove programs for tax credit purposes.

In our deliberations we have considered carefully the arguments which have repeatedly been made in some tax circles against the use of tax incentives for social purposes such as those we recommend. Two such arguments have been made most strenuously and merit thoughtful answers:

(1) Backdoor Financing. It is often contended that tax incentives, once enacted as a part of the Internal Revenue Code, become entrenched and immune from the kind of public scrutiny which more direct incentives, through appropriated funds, receive annually in the Congress. The recent history of the existing 7 percent investment credit for new equipment, which 18the most direct analogy to the investment credits proposed here, belies this argument. A fixed time limitation may be placed upon a provision of the tax law, just as in the case of authorizing legislation for a direct incentive. Although this was not done in the case of the 7 percent equipment investment credit, the Administration recommended a suspension of the credit for a period of time in 1966and 1967, because the demonstrated success of the tax credit as a spur to new investment was thought to increase the danger of inflation. The Congress accepted this conclusion, after giving it the same consideration it would have given had the question instead arisen in regard to the extension of an authorized direct incentive or in regard to an appropriation for a program of direct incentive enacted under a multi-year authorization. The public policy which dictates that an incentive be a permanent part of the law is the same whether the law involved is the Internal Revenue Code or some other statute.

The tax incentives we recommend should be limited in time and reappraised every two years. If, in addition, some further control on the cost to the Treasury is necessary, the government would retain authority to regulate the flow of green cards in the case of the credit for hard-core employment.

(2) Foreclosing Other, More Creative Avenues of Assistance. It Is contended that tax incentives tend to obscure the search for more effective techniques to achieve common social goals, This may be an e1fective argument in regard to other uses of tax incentives, but it Is inapplicable to the use we recommend. We arrived at the tax approach only after carefully appraising the various other available means of governmental assistance, several of which have been tried. After weighing these alternatives, we have come to the firm conclusion that the tax technique is indeed the most effective for the particular social goal. We have sought a means of motivating the widest possible spectrum of American business in alleviating joblessness in our urban and rural poverty areas, and we find that no other technique is as likely to move the American business community into action for this purpose as is the tax-incentive device.

The public policy goal here is the employment and training of hundreds of thousands of persons by, hopefully, thousands of business enterprises. The existing investment tax credit was taken on 1,239,000 corporate tax returns and 6,904,000 individual tax returns during the period of 1962-1965, representing new investments in the amount of approximately 75 billon dollars and 17.5 billion dollars respectively. It is precisely because of the need for a similarly pluralistic and large-scale answer to the problem of joblessness in the ghetto that we have turned to the most pluralistic technique for channelling governmental assistance: the individual decisions of thousands of businesses to utilize the tax credit in making their daily employment and plant location decisions. Other incentive techniques may be better for the solution of other major social problems, but we are convinced that the tax incentive method is the most appropriate and most hopeful solution to this particular problem.

Commissioner Charles B. Thornton, Chairman
Chairman of the Board
Litton Industries, Inc.

John Leland Atwood
President and Chief Executive Officer
North American Rockwell Corporation

Martin R. Gainsbrugh
Senior Vice President & Chief Economist
National Industrial Conference Board

Walter E. Hoadley
Senior Vice President & Chief Economist
Bank of America

Louis F. Polk, Jr.
Vice President-Finance
International and Development General Mills, Inc.

Lawrence M. Stone
Professor of Tax Law
University of California, Berkeley

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APPENDIX I: SPECIAL INTERIM RECOMMENDATIONS OF THE COMMISSION: LETTERS TO THE PRESIDENT ON THE NATIONAL GUARD AND ON CONFERENCES FOR POLICE AND MAYORS; LETTERS TO FCC AND DEPARTMENT OF JUSTICE

LETTERS TO THE PRESIDENT FROM THE CHAIRMAN AND VICE CHAIRMAN OF THE NATIONAL ADVISORY COMMISSION ON CIVIL DISORDERS

August 10, 1967

Dear Mr. President:

On the basis of the testimony to date, the National Advisory Commission on Civil Disorders recommends that the following actions be taken immediately:

(1) Increase substantially the recruitment of Negroes into the Army National Guard and Air National Guard. As of December 31, 1966, the Army National Guard totaled 404,996 officers and enlisted personnel in units in the United States. Of this total, only 4,638 were Negro -- 1.15%. As of the same date, the Air National Guard totaled 80,822 officers and airmen. Of this total, only 475 were Negro -- .6%.

The Commission believes strongly that this deficiency must be corrected as soon as possible. To do so will require the combined efforts of the Department of Defense, State officials, and the Negro community.

(2) Improve and expand riot control training of the Army National Guard and the Air National Guard. We have been informed that steps are under way to do this. We wish to underscore the importance of moving forward as rapidly as possible. We recommend that special emphas1s be given to such training during the next several weeks.

('3) Review by Federal and State officials of the qualifications and performance of all officers in the Army National Guard and Air National Guard. The Department of Defense should also review federal recognition standards and procedures to insure that they are adequate to preclude the appointment and promotion of substandard officers.

Respectfully yours,
/s/ Otto Kerner
Governor, Illinois

John V. Lindsay
Mayor, New York City

***

THE NATIONAL ADVISORY COMMISSION ON CIVIL DISORDERS
1016 16th street, N.W.
Washington, D. C. 20036

October 7, 1967

The President
The White House
Washington, D. C.

Dear Mr. President:

The National Advisory Commission on Civil Disorders, on the basis of testimony thus far received, recommends that you direct the Department of Justice to conduct a series of intensive training conferences this winter for governmental and police officials. The series would focus on effective measures for the maintenance of law and order and on programs to improve police-community relations.

We emphasize that knowledge and programs in these areas are not substitutes for solutions to the problems of racial discrimination, alienation and poverty, as reflected in such areas as employment, education and housing. But there is need for cities, as soon as possible, to share the knowledge that has been gained in methods for maintenance of law and order.

Some seventy-five witnesses, including mayors, chiefs of police, other state and local officials, representatives of federal departments and agencies, and residents of disorder areas have now testified before the Commission. Many others will be heard.

The testimony to date convinces the Commission that a substantial body of knowledge now exists in the fields of prevention and control of civil disorders that could profitably be communicated through training conferences under the auspices of the Department of Justice. Of course, we are aware that a number of valuable meetings and programs for local law enforcement officials are under way. But these meetings we believe can be s1gniflcantlysupplemented by a conference of broader scope and longer duration such as that we here propose.

The precise format of this conference and the cities to be involved would, of course, be determined by the Justice Department. The conference could be conducted here in Washington or on a regional basis, perhaps in cooperation with colleges or universities. A short program might be appropriate for key state and municipal officials, a slightly longer one for police chiefs, and a more extensive one for other public safety and government personnel. Subjects to be covered presumably would include advance planning; control techniques; communications systems; decision making during disorders; joint operations with neighboring police, state police, the National Guard and Army; community relations and effective means of dealing with citizens' grievances.

Respectfully yours,

/s/ Otto Kerner
Chairman

/s/ John V. Lindsay
Vice Chairman

***

THE NATIONAL ADVISORY COMMISSION ON CIVIL DISORDERS
1016 16th Street, N.W.
Washington, D. C. 20036

February 7, 1968

Honorable Ramsey Clark
Attorney General
Washington, D.C. 20530

Dear Mr. Attorney General:

More effective means of communication among police officers in a disorder area and between police in the area and officers at control headquarters are essential. Difficulties in communication impair day-to-day enforcement efforts, but become particularly acute during a disorder when there is urgent need for departments to act as coordinated units.

One important way to alleviate this problem is to provide miniaturized two-way radio equipment for all officers on patrol. Accordingly, the Commission's Report will include the following paragraph strongly endorsing the recommendation of the President's Crime Commission:

Miniaturized communications equipment for officers on foot is critically needed for command and control in civil disorders. This Commission, therefore, endorses the recommendations made by the Crime Commission that the Federal Government assume the leadership in initiating and funding portable radio development programs for the police.

The Commission believes that the Department of Justice should move forward now to develop such a program. We urge immediate action and we would appreciate learning of steps being taken in this direction.

Sincerely yours,

/s/ Otto Kerner
Chairman

/s/ John V. Lindsay
Vice Chairman

***

THE NATIONAL ADVISORY COMMISSION ON CIVIL DISORDERS
1016 16th Street, N.W.
Washington, D. C. 20036

February 7, 1968

Honorable Rosel H. Hyde
Chairman, Federal Communications Commission
Washington, D.C.

Dear Mr. Chairman:

The National Advisory Commission on Civil Disorders has examined the critical control problems that our cities have encountered in the recent disorders. Among the most perplexing has been to provide sufficient radio frequencies to insure communication among control officers on a daily basis and especially during a disorder. Police officers in the disorder area have frequently found it difficult or impossible to reach other officers or other agencies of local or state government. state and local police are sometimes unable to use the same frequency.

The following paragraph, which will be included in the Commission's report, sets forth the Commission's strong recommendation on the basis of its study:

We believe that the critical communications and control problems arising from the present shortage of frequencies available to police departments require immediate attention. Accordingly, we recommend that the Federal Communications Commission make sufficient frequencies available to police and related public safety services to meet the demonstrated need for riot control and other emergency use.

We understand that this matter is under consideration by the Commission now. We urge immediate action and would appreciate learning of steps being taken in this direction.

Sincerely.

/s/ Otto Kerner
Chairman

/s/ John V. Lindsay
Vice Chairman

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APPENDIX J: A STATEMENT ON METHODOLOGY

Two prime factors shaped the character and direction of the Commission's work. The first was time; the second, the scope of the task.

The Commission was established by the President on July 29, 1967.Under the terms of the Executive Order, it was directed to make an interim report not later than March 1, 1968,and a final report not later than July 29, 1968.

From the start, a sense of urgency dominated the Commission's work. This grew from month to month until in December, the decision was made to issue both the interim and final reports as a single document before March 1, 1968. Basic to this decision was the conviction that to present our major conclusions and recommendations in mid-summer would be to forfeit whatever opportunity might exist for the report "to affect this year the dangerous climate of tension and apprehension that pervades our cities."

At the same time, the Commission was faced with the task of analyzing a series of essentially local events, reporting "what happened" and "why it happened" in terms that would provide a national perspective. It also had responsibility to formulate a series of recommendations to answer the question "what can be done to prevent it from happening again and again."

The Work of the Commissioners

To accomplish these tasks within the stringent time limits indicated above, the Commissioners divided their work into two basic phases.

During the first phase, closed hearings were held in Washington, D.C., in order to bring before the Commission a full spectrum of witnesses whose testimony would aid the Commission in considering the wide range of issues raised by the President's charge.

In the initial hearings, the Commission sought information to determine as accurately as possible what happened during several major disorders. The Commission heard testimony from mayors and their top assistants, from police and fire department officials, from officers and workers of Human Relations Commissions, and from a variety of other local officials who either played a role in controlling the disorders, or had knowledge of the events that took place. For some major disorders, the Commission also heard testimony from federal officials, from governors, from other state officials, and from state law enforcement officers.

This testimony was not confined solely to what happened. In prepared statements and during questioning by the Commission, these officials also explained their understanding of the basic causes of the disorders, and their recommendations for future action.

In attempting to gain an understanding of the forces that gave rise to the disorders, the Commission heard testimony from ghetto residents, from civil rights leaders, from noted authors, from reporters, from sociologists, historians, psychologists, economists, and from a wide range of federal, state and local officials involved in the problems of our cities, our poor, and our minority groups.

Because of the extreme importance of measures relating to the prevention and control of disorders, the Commission heard testimony from officials of the Department of Justice and the Federal Bureau of Investigation, from army officers with responsibility for riot control operations, from National Guard officers who commanded control forces, and from a wide variety of police officials and academic experts in police-community relations.

The Commission heard extensive testimony to provide the background for its program recommendations. In these various fields -- employment, education, housing, welfare, youth programs, urban problems -- the Commission heard testimony from Cabinet officials, from other federal officials, from business and labor leaders, from ghetto residents, from state and local officials. from civil rights leaders, and from university experts.

In total, during 20 days of hearings from August to November, over 130 persons appeared as witnesses before the Commission. The transcript of these hearings -- which totaled over 3,900 pages -- was digested and fully indexed so that it could serve as a continuing source of information for the Commission, staff, consultants, and advisers.

A list of the witnesses appearing before the Commission is found in Appendix E.

In addition to the hearings, the Commissioners themselves visited some eight cities that had suffered serious disorders. During these visits the Commissioners met with and interviewed ghetto residents and black militants, as well as public officials. Tours were conducted of areas that had experienced disorders.

The second phase of the Commission's work consisted of a series of meetings held from December through February of 1968 for the purpose of discussing the results of the field surveys and other investigations, reviewing preliminary drafts of sections of the report, and discussing and formulating proposed recommendations.

In addition to these general meetings attended by the Commission and key staff members, individual Commissioners participated in preparation of the report by exchanging information with the staff, by furnishing data on particular subjects under review, and by generally furnishing advice and guidance to the staff effort.

In sum, during the period from July 29, 1967, to March 1, 1968, the Commission met for a total of 44 days, not including the trips taken to the riot cities.

The Staff

The pressures of time and the need to study a representative sample of the riot cities led the Commission to recruit rapidly a staff of over 90 professionals, including qualified personnel, both professional and clerical, detailed to the Commission by federal agencies.

As the Commission's work shifted into its second phase, and as the investigative and analytical work neared completion, the staff was reduced in number to approximately 45 professionals.

Shortly after the appointment of the Commission, the President appointed David Ginsburg, a Washington attorney, as Executive Director, to direct the staff effort. He was assisted by the Deputy Executive Director, Victor H. Palmieri, a Los Angeles attorney and businessman.

Merle M. McCurdy, on leave of absence as United States Attorney for the Northern District of Ohio, served as the General Counsel for the Commission. He and his staff furnished legal advice to the Commission, arranged for and conducted the Commission hearings and conducted depositions as part of the investigative efforts.

Stephen Kurzman, a Washington attorney, supervised the field surveys conducted by the Commission, and the analysis of the data collected by these surveys.

Staff efforts in the various substantive and analytical areas of the Commission's work were directed by a number of experts. Dr. Robert Shellow, a social psychologist with the National Institute of Mental Health, directed portions of the analytical effort conducted by the staff. The staff work concem1ng police and public safety was the responsibility of Arnold Sagalyn, former Director of the Office of Law Enforcement Coordination for the Treasury Department, on leave of absence as a consultant on public safety for the Department of Housing and Urban Development.

Robert Conot, author and journalist, directed the work of the staff in preparing the riot profiles. Milan C. Miskovsky, on leave as Assistant General Counsel of the Department of Treasury, served as Director of Investigations. Staff work in the development of social and economic program recommendations was directed by Dr. Richard Nathan, an economist and associate of the Brookings Institute, and Dr. Anthony Downs, economist.

The Commission also relied heavily on the talents of the consultants and advisers named in Appendix F. They included experts on all facets of the problems studied by the Commission, 1ncluding leading scholars, police and other law enforcement officials, a variety of experts from local, state, and federal government agencies, and specialists from private research firms. Some of these experts prepared drafts of chapters of the report, submitted papers, or conducted studies especially for the Commission.

Commission Investigative Efforts

The Commission undertook three major field research programs.

The primary investigative effort consisted of field surveys conducted in 23 cities. After consultation with staff researchers, the Commission concluded that within the short time period available, a national perspective could best be obtained by an intensive study of a representative group of cities that experienced some sort of disorder in 1967. Disturbances that took place in over 150 cities were initially ranked on the basis of the degree of violence and damage, the duration of the violent action, the number of active participants, and the level of law enforcement response. From this list, Commission researchers selected for field investigation:

• nine cities which experienced major destruction.

• three cities where the disorders occurred in university settings.

• a chain of six New Jersey cities surrounding Newark.

• five cities which experienced lesser degrees of violence.

For each of the 23 cities, the staff first collected and reviewed existing written material on the disorders -- FBI and Department of Justice reports, reports prepared by other government agencies, and newspaper accounts. This review was supplemented by oral briefings from those with special knowledge of one or more of the 23 cities.

Over a period of several months, investigative teams of six staff members were dispatched to 20 of the 23 cities. (Investigation of the three university disturbances was contracted to & nonprofit corporation.) In each city, subteams of two staff members interviewed persons from the official sector (mayors, city officials, policemen and police officials, judges, and others), the disorder area (residents, leaders of community groups) and the private sector (businessmen, labor and community leaders). In order to increase uniformity of the investigative effort, each six-man team was dispatched to a number of cities.

During the city visits, team members interviewed over 1,200 persons. All interviews followed, to the fullest extent possible, questionnaires developed by staff members working in the various substantive areas studied by the Commission.

After completion of interviews in a city, team members returned to Washington to dictate reports of their interviews. Team members were also fully debriefed by oral questioning by staff members.

A draft report was prepared synthesizing the team interviews for each city. Follow-up visits to a number of cities were conducted to obtain additional information.

The field investigative effort thus produced information in two areas: first, Chronology of each disorder, beginning with the events leading to the outbreak, through the development in its various stages, to the resolution and aftermath; second, the factors responsible for the tension leading to disorder, including grievances in the Negro community, and the responses of officials. A national perspective, as well as evidence of specific events, was obtained.

The second major investigative effort went into the development of the riot profiles, a detailed study of nine disorders. This study focused on an identification and classification of the key actors and critical points in the disorders. It took advantage of all the material developed by the field surveys, but also conducted independent investigations.

To ensure absolute accuracy each riot profile was thoroughly reviewed by the General Counsel and his staff. All statements that were not substantiated by sworn testimony, or by well-known facts, were isolated, and potential verifying witnesses identified.

Attorneys from the General Counsel's staff subpoenaed these witnesses for depositions, and in a series of city visits, obtained nearly 1,500 pages of sworn testimony from 90 witnesses to validate all material assertions in the Riot Profiles.

The third major investigative effort sought to determine to what extent, if any, there was planning or organization in the riots. The methodology of this investigation is set out in the Chapter on Organized Activity and Incitement to Violence. Depositions and interviews conducted in connection with the General Counsel's Office augmented this investigation.

A number of other specialized studies were conducted during preparation of the report, or have been contracted to outside consultants for later completion. These studies include, for example, an analysis of three disorders that took place in university settings, a comprehensive study of riot arrestees in over 20 disturbances occurring over the past three years, and a computer examination of the effectiveness of police-community relations programs.

In addition,the Commission has undertaken two major surveys of Negro and white attitudes with the aid of the Ford Foundation. The first, a survey of white and Negro attitudes in 15 major cities and four suburban areas is being conducted by the Survey Research Center at the University of Michigan. The second, under the direction of Professors Peter Rossi and James Coleman, Johns Hopkins University, is a continuation of the Commission's field effort --a special survey of attitudes of community leaders, elected officials, administrators, policemen on the beat and teachers. The Commission is deeply indebted to the Ford Foundation for its assistance and support.

Analytical Studies

To describe and explain the disorders and to identify operative factors during the period of disorder, the data collected and compiled by field investigators were analyzed by staff social scientists and consultants. The analysis concentrated on collective behavior, leadership structures, the bargaining process operating in the disorders, and the causative factors of the disorders. Detailed analyses of selected cities, and a comprehensive analysis of all disorders studies, were prepared.

The data obtained from the field investigations were further analyzed by the staff and consultants in preparing the chapter on Patterns of Disorder. Results obtained from a special survey based on probability samples of residents in Detroit and Newark augmented this analysis. A methodology for this survey is set out in the chapter.

In cooperation with the Bureau of the Census, the staff developed socio-economic profiles for each of the 23 cities studied by the Commission. Primarily based upon 1960 Census information, these profiles included statistics on total population, age distribution, education, size of households, income, employment, type of employment, and housing. Separate information on white and non-white population was developed for the city studied, the standard metropolitan statistical area containing the city, and the census tracts within the city where the disturbance took place. For three cities, similar data were also compiled for a "poverty area." Whenever possible, Census data was updated by more recent information.

Program Studies

The remaining staff and consultant efforts focused on the major substantive problem areas delineated in the President's charge to the Commission.

The chapter on the police and the community was the product of a Joint effort of the staff and a large number of consultants and advisers. Initially, a number of academic experts, including many who had served as staff members, consultants or advisers to the Crime Commission, submitted original papers analyzing a variety of problems In police-community relations.

The chapter on control of disorder contains a distillation of some of the extensive material In the control supplement, but with special emphasis on the means by which police -- and public officials -- can control incidents or disorders In their early stages. A summary of the Methodology is contained in a footnote to the chapter.

For the control chapter and supplement, the basic data on police departments were obtained from a survey of 28 city and two state police departments [1] conducted for the Commission by the International Association of Chiefs of Police (IACP). The survey information, which was obtained from interviews conducted by experienced police personnel, was analyzed by the IACP staff, and a report prepared assessing the state of preparedness and control capabilities of these police departments. The survey and report also covered police-community relations programs and training, information on policy guidelines, and data on Negro personnel in police departments.

A two-day conference attended by police officials from several leading departments was held for the purpose of reviewing the lessons learned by police as a result of recent disorders. A National Guard Commander also participated in discussions relating to police-Guard coordination and operations. A transcript of the conference was prepared to permit full review of the proceedings.

The basic sources of data on the National Guard were: After Action Reports from a number of cities where Guard troops aided in control of disorders; the report on Detroit prepared by Presidential emissary Cyrus R. Vance; extensive information on the National Guard furnished by the National Guard Bureau and the Department of the Army; information from Commission investigations, analyses, riot profiles, and hearings; and information furnished by consultants and advisers.

In August of 1967, the Committee on Armed Services of the House of Representatives established a special subcommittee to inquire Into the capability of the National Guard to cope with civil disturbances. The report and hearings of this subcommittee served as a valuable source of information on the Guard.

An experienced Guard commander, who also served as a police commissioner, was retained as a consultant on National Guard matters. He, assisted by the staff, reviewed the information from the above sources, and submitted a report based upon this information and his own experience.

Information about the Army was primarily supplied by the Department of Defense. Additional Information was obtained from the Vance report on Detroit, and from Commission hearings.

Information concerning fire department problems, and suggested recommendations, were primarily obtained from reports prepared by the National Fire Protection Association (NFPA), and by the Chief of the New York Fire Department. Additional information was obtained from reports prepared by fire department observers at several disorders.

Reports were prepared for the Commission by the Public Administration service (PAS) of Chicago, Illinois, (an organization that also developed Information on coordination of police services for the Crime Commission) on intracity and interjurisdictional coordinated planning at a horizontal level. In preparing these reports, PAS used information from the IACP survey of police departments as well as from its own resources. The Department of Justice furnished Information concerning federal-state planning.

Information on youth groups was obtained from the Commission field investigations, and from a study prepared for the Commission by the Administration of Justice Unit of the University Research Corporation.

Basic Information for the section on legal needs was obtained from the IACP survey, from a report prepared for the Commission by the National League of Cities, Washington, D.C., and from the Department of Justice studies. Information from Commission investigations and hearings was also relied upon.

Staff members prepared the initial drafts of the public safety sections using the above Information. All or selected parts of these drafts were then submitted to a number of advisers for critical comment In order to ensure not only accuracy, but also full coverage of the subjects under Investigation.

The methodology for the media chapter, Including the special study of television broadcasting and newspaper stories of the riots, is described in the chapter itself.

Preparation of the remaining portions of Parts II and III of the report drew on the resources of the Commission, the staff, consultants, and advisers. Preliminary drafts were generally prepared based on outlines approved by the Commission and on readily available Information. As the drafts progressed through the many revisions leading to a final product, data from the field investigations, hearings and special studies were gradually Incorporated. Drafts were circulated among Commission members, other staff members, and consultants for comment. Advisers submitted new ideas and Information, and critical commentary. Also at this stage new data received from a variety of outside studies concerning the disorders were fed into the drafts. Finally, after thorough review and reworking by the members of the Commission, who spent 24 days in full Commission meetings reviewing, discussing and revising the drafts, the final versions were completed.

In addition to the foregoing, two special advisory panels were formed by the Commission. On August 10, 1967, the Commission, after consulting with the President, appointed a separate and expert group, the National Advisory Panel on Insurance in Riot Affected Areas, to deal with the insurance problems of urban core residents and businessmen.

The report of the Panel, "Meeting the Insurance Crisis of our Cities," was separately published in January 1968.

A second panel, the Advisory Panel on Private Enterprise, was formed under the chairmanship of Commissioner Thornton. The primary purpose of the Panel was "to assist the Commission and staff in formulating recommendations for increasing employment opportunities." The members of the Panel included leading businessmen and academic experts. The full text of the Panel's report is attached as Appendix II.

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Notes:

1. Atlanta, Ga.; Baltimore, Md.; Boston, Mass.; Buffalo, N. Y.; Chicago, Ill.; Cincinnati, Ohio; Cleveland, Ohio; Dayton, Ohio; Detroit, Mich.; Hartford, Conn.; Houston, Texas; Kansas City, Kansas; Los Angeles, Calif.; Louisville, Ky.; Memphis, Tenn.; Newark, N. J.; New Haven, Conn.; New Orleans, La.; New York, N.Y:; Oakland, Calif.; Oklahoma City, Okla.; Philadelphia, Pa.; Phoenix, Ariz.; Pittsburgh. Pa.; St. Louis, Mo.; San Francisco. Calif.; Tampa. Florida; Washington, D. C.; Michigan and New Jersey State Police.

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INDEX

(Not Included Here)

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Part 1 of 5

Charts