REGIONAL PERSONALITY AS AN OBSTACLE TOREGIONAL PLANNING AND COMMUNITY ACTION

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Authors Cipriani, Ralph J.

Publisher The University of Arizona.

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http://hdl.handle.net/10150/555355

REGIONAL PERSONALITY AS AN OBSTACLE TO- REGIONAL PLANNING AND COMMUNITY ACTION

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Ralph J . C iprian i

AN INTERNSHIP REPORT SUBMITTED TO THE FACULTY OF THE COMMITTEE

ON URBAN PLANNING

IN PARTIAL FULFILLMENT OF THE REQUIREMENTS

FOR THE DEGREE OF

MASTER OF SCIENCE

IN THE GRADUATE COLLEGE

THE UNIVERSITY-OF ARIZONA

■ - v L U C H O f A 2 C K ; 7 £ C 7 i , ; : £ ''U'.iJEwr-/ oy

1975

S ta tem en t by Author

T h i s i n t e r n s h i p r e p o r t h a s been s u b m i t t e d i n p a r t i a l f u l f i l l m e n t o f r e q u i r e m e n t s f o r an ad v an ced d e g r e e a t The U n i v e r s i t y o f A r i z o n a and i s d e p o s i t e d i n b o t h t h e U n i v e r s i t y o f A r i z o n a Urban P l a n n i n g D e p a r t m e n t a l L i b r a r y and t h e C o l l e g e o f A r c h i t e c t u r e L i b r a r y t o be made a v a i l a b l e t o anyone w i t h an i n t e r e s t i n t h e s u b j e c t -

B r i e f q u o t a t i o n s f rom t h i s i n t e r n s h i p r e p o r t a r e a l l o w a b l e w i t h o u t s p e c i a l p e r m i s s i o n , p r o v i d e d t h a t a c c u r a t e acknowledgm ent o f s o u r c e i s m ade- R e q u e s t s f o r p e r m i s s i o n f o r e x t e n d e d q u o t a t i o n o r r e p r o d u c t i o n o f t h i s m a n u s c r i p t i n w ho le o r i n p a r t may be g r a n t e d by t h e head o f t h e m a jo r d e p a r t m e n t when, i n h i s ju d g m e n t , t h e p r o p o s e d u s e o f t h e m a t e r i a l i s i n t h e i n t e r e s t s o f s c h o l a r s h i p . I n a l l o t h e r i n s t a n c e s , h o w ever , p e r m i s s i o n must be o b t a i n e d from t h e a u t h o r .

T h i s i n t e r n s h i p r e p o r t h a s b e e n a p p ro v ed on t h e d a t e shown be low :

APPROVAL BY INTERNSHIP REPORT DIRECTOR

Thomas P. S a a r i n e nP r o f e s s o r o f Urban P l a n n i n g and Geography and Area Dev.

Date

( i )TABLE OP CONTENTS

Acknowledgements i iL is t o f Tables i i iL is t o f F igures i i iIn troduction 1

The Regional S e ttin g The P lanning Agency-O rganization o f the Planning Commission

• Structure o f the In ternsh ip gC hronological Summary o f P ro jec ts n

and A c t iv i t ie s Involved In

D eta iled D escrip tion o f the Area 12The General S itu a tio n 16A ctors, P ercep tion s, Roles 18The Proposal 21A nalysis 25

Evaluation o f the In ternsh ip 31Recommendations 33

Appendices 55R eferences 42

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Acknowledgements

In g r a t itu d e , I would l ik e to thank P ro fesso r Thomas Saarinen fo r h is guidance and c r it ic is m during th e w r itin g o f t h is report; Dr. Henry C. Hightower fo r h is e x c e lle n t advice and communications w hile I was in Ohio and West V irg in ia ; and Mr. Robert Wirgau, E xecutive D irecto r o f th e Brooke-H ancock-Jefferson M etropolitan Planning Commission, fo r h is a s s is ta n c e , advice and coop eration in fu rn ish in g maps and data fo r the rep o rt.

My sp e c ia l thanks are due to Mr. and Mrs. Robert C ip ria n i, my p a ren ts, whose s a c r i f i c e s , g en ero s ity and encouragement have g iven me th e opportunity to see and experience much more o f America than most people do in th e ir f i r s t tw enty-th ree y ea rs , meet scores o f people from d iv erse backgrounds and attend two f in e u n iv e r s i t ie s . Without th e ir h e lp , I would have had no in tern sh ip to base t h is report on.

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L is t o f Tables

Table 1 - Work Program. ................ 6Table 2 - Cost estim a tes involved ................ 14

in c lea n in g up the a ir in the co u n try 's urban a rea s.

Table 3 - Comparison o f se le c te d ................ 16v a r ia b le s between theSteub en ville-W eirton SMSA and the average fo r a l l 243 SMSAs.

L is t o f F igu res

Figure 1 - BHJ R egion. 4Figure 2 - BHJ O rganization . 10Figure 3 - Map showing lo c a t io n ................. 13

o f Whe eling-P i11sb urgh S t e e l ' s p r in c ip a l steelm ak ing , f in is h in g and fa b r ic a t in g p la n ts .

F igure 4 - L ocation o f American .............. .. 13E le c t r ic ' s power p la n ts in the Upper Ohio V a lley .

Figure 5 - Downtown m all p ro p o sa l....................... 24Figure 6 - Proposal re fe re n c e . ................ 26

In trodu ction

Purpose and Scone

This report i s based on my e ig h t month experience as an in tern at the Brooke-H ancock-Jefferson M etropolitan P lanning Commission during 1974. The in tern sh ip program was financed in part by a HUD T it le XIII Grant adm inistered by the S ta te o f West V irg in ia O ffice o f Federal S ta te R ela tion s out o f the governor's o f f i c e . The Brooke-H ancock-Jefferson M etropolitan P lanning Commission (h e r e a fte r re ferred to as BHJ) i s both an in te r s ta t e and m etropolitan agency which op erates in J e fferso n County in Ohio and Brooke and Hancock C ounties in West V ir g in ia . Primary data sources fo r the report in clu d e personal exp erien ce , form al.and inform al m eetings w ith fe llo w s t a f f , and numerous m eetings and seminars which I attended both at the lo c a l and s ta te l e v e l s .

During my e ig h t month in tern sh ip at BHJ, I was involved in a wide range of p r o je c ts . One o f the major p r o je c ts involved the development o f a prelim inary design proposal fo r the r e v it a l iz a t io n o f the cen tra l b u sin ess d i s t r i c t o f the a rea 's la r g e s t c i t y , S te u b e n v ille , Ohio. The c i t y ' s CBD has been d e c lin in g in importance fo r y ea rs , a s itu a t io n th at i s common among c i t i e s o f s im ila r s iz e in the East and Midwest. D iso rg a n iza tio n , lack o f commitment toward r e v i t a l iz in g the CBD and lack o f d ir e c t a ctio n make i t appear th a t the problem o f the CBD has deep ro o ts and i s o f a p sy ch o lo g ica l nature.

This report w i l l focu s on the problem o f S te u b e n v ille 's d e c lin in g CBD. In my es tim a tio n , the o b s ta c le s th a t preclude the area from d ea lin g e f f e c t iv e ly with t h is problem are the same o b sta c le s th a t undermine the e n tir e p lanning p rocess in th e reg io n . As a r e s u lt , I con sid er t h is p a r t ic u la r 's itu a t io n as one th a t warrants deeper in sp e c t io n . In order to ob ta in a c lo s e r view o f the problem, I have drawn upon tr a in in g rece ived at the U n iv ers ity o f Arizona, work experience at BHJ and subsequent research .

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O rganization

The report i s d iv id ed in to four major s e c t io n s .F ir s t , a h igh ly gen era lized d esc r ip tio n o f the reg ion a l s e t t in g and the p lanning agency and i t s organ ization i s p resen ted . The second se c t io n ex p la in s the stru ctu re o f th e in tern sh ip and p resen ts a ch ron o log ica l summary o f p r o je c ts and a c t i v i t i e s in which I had d ir e c t involvem ent.

The th ir d se c t io n o f the report fo cu ses on the problem- o f S te u b e n v ille ’ s d e c lin in g CBD. The f i r s t part o f th e th ird se c t io n o f fe r s a d e ta ile d d esc r ip tio n o f the Steubenv i l l e area . A statem ent o f the general s itu a t io n w ith regard to the CBD fo llo w s . An important elem ent in t h i s se c t io n i s a d isc u ss io n o f the major actors in v o lv ed , th e ir p ercep tion s o f the problem and th e ir r o le s . Also included in t h i s part o f the report i s a d e sc r ip tio n o f the s p e c i f ic p ro jec t I worked on r e la t in g to the CBD. The la t t e r part o f t h is se c t io n attem pts to determine and analyze the l e s s obvious causes o f the d e c lin e o f the S teu b en v ille CBD. The f in a l se c t io n o f the report in clu d es both an ev a lu a tio n o f the in tern sh ip and a recommendation as to how i t might p o s s ib ly be improved.

I . The Regional S e tt in g

The BHJ region i s lo ca ted geo g ra p h ica lly in the Appalachian P la teau region o f the country. The en tir e region i s ch aracterized by smooth h i l l s separated by deep v a l le y s . The only s ig n if ic a n t t r a c t s o f f l a t land are th ose lo ca ted along the Ohio R iver. The s o c ia l and economic stru ctu re o f the region i s or ien ted toward the Ohio R iver, though in recen t years most o f the commercial and r e s id e n t ia l development has sh if te d to the h i l l - t o p s above the e x is t in g r iv e r towns. W ithin th e two co u n tie s in West V irg in ia and one county in Ohio th a t compose the reg io n , th ere are approxim ately 120 urbanized a rea s . These are even ly d is tr ib u te d

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throughout the reg ion w ith the la r g e s t o f them b ein g concentrated along the Ohio R iver ( see Figure 1 ) .J e ffer so n County in Ohio con ta in s approxim ately 10% o f the r e g io n 's land area and approxim ately the same percentage of i t s com m unities. The same county a lso accounts fo r about 59$ o f the r e g io n 's t o t a l popu lation o f approxim ately 165,000 (U .S . Bureau o f the Census, 1970).

The one word th a t ch a ra c ter izes the region more than any o th er i s " s te e l ." P le n t i fu l coa l d e p o s its in the Southeastern Ohio - Western Pennsylvania reg io n , combined w ith necessary e l e c t r i c i t y , natural gas and w ater, in a d d itio n to e x c e lle n t water tra n sp o rta tio n to b rin g in o th er m inerals n ecessary fo r th e making o f s t e e l , have produced an enormous s t e e l in d u stry .

Though d iv e r s i f ic a t io n o f the economic base would seem d e s ir a b le , i t appears very u n lik e ly . There i s s t i l l some a g r icu ltu re in the reg io n , m ostly in J e ffer so n County. However, p resen t trends in d ic a te a gradual d e c lin e in a g r ic u ltu r a l a c t iv i t y . Over 95$ o f the saw tim ber volume in the a rea 's commercial f o r e s t s i s hardwood, but production i s lim ited s in ce the wood i s o f g en era lly poor q u a lity .As the s t e e l p la n ts continue to expand t h e ir f a c i l i t i e s , i t appears th a t s t e e l production and r e la te d s t e e l in d u s tr ie s w i l l continue to employ the m ajority o f th e r e g io n 's p eo p le . In l ig h t o f the current sw itch to coa l as an energy source, th e p o s s ib i l i t y e x i s t s th a t one or more co a l conversion p la n ts may ev en tu a lly be lo ca ted w ith in the reg io n . The one sure fa c t i s th a t heavy in du stry w i l l continue to dominate the r e g io n 's economy.

x

F i g u r e 1 - BHJ R e g io n . S o u r c e : BtiJ M e t r o p o l i t a n P l a n n i n g Commission , ( o r a n g e a r e a s i n d i c a t e c i t i e s and to w n s) ,

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B^U F F ' A L 0 .

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The Planning Agency

The BHJ M etropolitan Planning Commission s t a f f i s very sm all. I t c o n s is t s o f th e ex ecu tiv e d ir e c to r , a p r in c ip a l p lanner, a tra n sp o rta tio n p lanner, a community coordinator and a draftsm an. At c e r ta in tim es nonpermanent p o s it io n s are created fo r s p e c i f i c p r o je c t s . C onsidering the s iz e o f the s t a f f and th e fa c t th a t the agency i s both m etropolitan and in t e r s t a t e , i t ' s no wonder th a t , at any g iven tim e, each s t a f f member i s involved in a number o f d if fe r e n t p r o je c ts .

The agency's fu n c tio n a l p lans and programs r e la te to s o l id w aste, tra n sp o r ta tio n , mass t r a n s i t , housing, water management, recrea tio n and land u se . Of th e se , transportation - occu p ies a la rg e percentage o f the s t a f f ' s tim e. The 1974-75 Work Program ( see Table 1) shows tran sp o rta tio n to account fo r approxim ately two th ir d s o f th e e n t ir e program. I t appears reason ab le th a t t h is area should occupy such a largo p ortion o f the program as the r e g io n 's s t r e e t and highway network i s very inadequate in comparison w ith the reg io n ’ s n eeds. In my own research , I have found the S teu b en ville-W eirton SMSA to be the la r g e s t SMSA in the country w ithout d ir e c t access to an in te r s ta te highway.Of the developm ental programs, the A-95 review p rocess i s probably the most im portant. The P ro jec t N o t if ic a t io n and Review System (A-95 Review) was e s ta b lish ed by the O ffice o f Management and Budget to f a c i l i t a t e the ev a lu a tio n , review , and coord ination o f Federal a ss is ta n c e programs and p r o je c ts by s t a t e , area and lo c a l governmental agen cies and organizat io n s . BHJ serv es as the d esign ated m etrop olitan c lea r in g house fo r a p p lic a t io n s r e la t in g to p r o je c ts in v o lv in g F ederal funds w ith in the reg io n .

A la rg e nercentage o f the agen cy's funding i s ob tained , from gran ta rece iv ed from HUD. P re v io u s ly , BHJ worked w ith HUD from t h e ir P ittsb u rg h reg io n a l o f f i c e . During the summer o f 1974 th e agency was perm itted to p la ce i t s e l f

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Table 1 - Work Program January *74 - June ’75

HUD PROGRAM

PUP NO, WORK ELEMENT101102201202400699700 801 900 905 910 915

1000 1005 & 10

1101

Environmental Assessment Flood P la in Mgt.HousingP ro jec t Coord/A-95 H ealth Plan Transp/Comp Plan Coord Rec. & Open Space C ollege Consortium Comp. Region Plan P opulation Economics Land Use Adm. & Mgt.C it iz e n P art.E ld er ly

UNIFIED TRANSPORTATION PROGRAM60116012601360146015601660516052

605360546055605660576058

T ransportation Meeds o f the Disadvantaged Update Short Range (5 Year) Program Low C apita l In ten s iv e Program Energy Conservation Program Energy Conservation Demonstration Mass T ransit P lanning and Programming R evise and Update T r a ff ic Zones S tr ee t and Highway InventoryS tr e e t and Highway - F unctional C la s s i f ic a t io nCapacityT r a ff ic CountsTravel TimeA ccident RecordsT r a ff ic Control Features

(continued)

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60596051060511

61016251625262536254 6501 6601 6602 6651 6950 6970 9051 91019151915291539154

10051 10101 10501 10401 10402

Develop Census Data For T ransportation Use S o c ia l F actors Assessment Methodology Environmental Overview Methodology A ir Q uality A nalysis Routine ServiceRural Trans. Demonstration Program A ssistan ceData F i le Maintenance ProcedurePlan ImplementationStatew ide T ransportation P lanningA s s is t S ta te T ransportation AgenciesRoute 22 Corridor Environmental StudyN ational T ransportation S tu d iesT echnical Program Supervision (Task Force)Annual Report (FY-1975)P opu lation S tu d ies MethodologyEconomic Factor MethodologyLand Use S u rv e illa n ce MethodologyD w elling Unit MethodologyDevelopment C ontrols A nalysis MethodologyHighway Access Control StandardsTrans. Systems Planning - Community Part.' .Trans. P ro jec t P lanning - Community P a r t .FY 76 T ransportation Work Elements o f OWPP o lic y Committee - Adopt By-LawsTrans. Study Admin. - C le r ic a l and F in a n cia l

Source: BHJ M etropolitan P lanning Commission

under the ju r is d ic t io n Of the Columbus reg io n a l o f f i c e . A dditional revenue i s obtained through grants rece ived from the Appalachian Regional Commission and assessm ents placed on the three lo c a l c o u n tie s . For the f i r s t s ix months o f my in tern sh ip the agency1s o f f ic e s were lo ca ted in V/eirton, West V ir g in ia . In J u ly , the o f f i c e s were moved to S te u b e n v ille , Ohio in order to take advantage o f the a v a i la b i l i t y o f increased o f f i c e sp ace .

O rganization o f the Planning Commission

The BHJ M etropolitan Planning Commission i s composed o f approxim ately 70 in d iv id u a ls from throughout the reg io n . Of th e se , 24 are appointed members, th e remaining are ex - o f f i c io members (BHJ Annual Report, 1973)• A 17 member E xecutive Committee i s the actu a l working body o f th e Commission. The BHJ s t a f f i s the im plem entation arm o f the o rg a n iza tio n , re sp o n sib le fo r carrying out the work program, p o l ic i e s and d ir e c t iv e s o f the Commission. Applica tio n s fo r funding from s ta te and Federal sources are prepared by the s t a f f , rece ived by the E xecutive Committee and subm itted to th e f u l l Commission fo r approval. The b a s ic fu n ctio n in g o f the organ ization ev o lv es around a th ree year O verall Program Design th a t i s updated each year An annual work program and budget based on t h is la r g e r program i s subm itted to the E xecutive Committee each year fo r review and s im ila r ly subm itted to the f u l l Commission fo r approval.

Two major b od ies e x is t to serve as input mechanisms in the p lanning p ro cess . These in clu d e the fu n c tio n a l com m ittees composed o f members o f the Commission and the C itiz e n s R egional Forum whose fu n ctio n i s to provide c i t iz e n in p u t, review , and c r i t i c a l comment on reg io n a l p la n s . County and community lea d ers and lo c a l p lanning agen cies are expected to communicate d ir e c t ly w ith the Commission. Of cou rse, the d e sc r ip tio n presented here i s

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. the id e a l . That the o rgan iza tion a c tu a lly fu n ctio n s in t h is manner i s q u estio n a b le . A few examples serve to dem onstrate the d iffe r e n c e s between the re a l organ iza tion and the id e a l o rg a n isa tio n .

At th e March 10, 1974 m eeting o f the BHJ M etropolitan Planning Commission and the BHJ T ransportation Study P o lic y Committee, 18 o f the 70 members o f the Commission were p resen t (M inutes o f the J o in t Meeting o f BHJ and BHJTS P o lic y Committee, March 10, 1974)♦ This rep resen ts a ty p ic a l attendance f ig u r e . The E xecutive Committee, though i t claim s to be th e working body o f the Commission, appeared to be merely a rubber-stamp body th a t approves everyth ing th a t comes from the D ir e c to r 's desk . The b od ies th a t supposedly serve as input mechanisms in the p lanning p ro cess , th e fu n c tio n a l com m ittees and the C it iz e n s Regional Forum, e x is t in name o n ly . I t i s d i f f i c u l t to determ ine whether the f a i lu r e o f the C it iz e n s R egional Forum i s due to the awaren ess th a t whatever recommendations they make w i l l be ignored anyway, which r e s u lt s in lack o f membership, or the fa c t th a t la ck o f membership causes th e ir recommendations to be ignored . The cause and e f f e c t r e la t io n sh ip i s u n clear . However, i t i s c le a r th a t the body e x i s t s at t h is tim e, m ainly, to m eetithe Federal requirem ents concerning c i t iz e n p a r t ic ip a t io n .Figure 2 rep resen ts the id e a liz e d v ersio n o f the BHJ organiz a t io n .

I I . S tructure o f th e In tern sh ip

During my f i r s t few days at BHJ, I was g iven a b a s ic o r ie n ta t io n to th e agency by both the E xecutive D irecto r and other s t a f f members. F a m ilia r ity w ith BHJ's operation and a c t i v i t i e s was acquired during the next few weeks. My in tern sh ip was stru ctu red so th a t I worked on a s e r ie s o f one or two week assignm ents, some req u ir in g a lon ger period o f tim e fo r com pletion . In a l l my work assignm ents I had adequate su p erv is io n and a s s is ta n c e by e ith e r the agency's

MEMBERSHIP

Figure 2 - BHJ Organiz a t io n . Source: BHJ Annual R eport. 1975.

COMMITTEES

BHJ STAFF

EXECUTIVEDIRECTOR

BHJCOMMISSION

C ITIZENS REGIONAL FORUM

CRFEXECUTIVE COMMITTEE

CITIZENS

COUNTYAND

COMMUNITYLEADERSLOCAL

PLANNINGAGENCIES

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E xecutive D irec to r or P r in c ip a l P lanner. M eetings and seminars I attended in C harleston to g eth er w ith form al and inform al lo c a l m eetings and Commission m eetings I attended , gave me a comprehensive view o f BHJ and i t s planning a c t i v i t i e s . In a d d itio n , they exposed me to many o f the p ro cesses o f lo c a l , s ta te and Federal government and the work o f th e ir re sp ec tiv e o f f i c i a l s . .

C hronological Summary o f P ro jec ts and A c t iv i t ie s Involved In

My major work assignm ents during th e f i r s t h a lf o f my in tern sh ip period ex h ib ited much d iv e r s i ty . In January,I was engaged in the development o f prelim inary p lans and concepts fo r a downtown m all in S te u b e n v ille , Ohio involv ing- grap h ics and d r a ft in g . At the same tim e, and in g rea t co n tra st to the m all assignm ent, I was in volved in a reg io n a l housing study which culm inated w ith the preparation o f v is u a l a id s , m ostly ta b le s and graphs, used at a Regional Housing Seminar at The C ollege o f S teu b en v ille in March. My next major assignment was the development o f a workable l ib r a r y f i l i n g and ca ta lo g in g system fo r our agency’ s l ib r a r y . This was a ted io u s and tim e consuming ta sk , but h o p efu lly one th a t w i l l continue to b e n e f it the agency in the fu tu r e .

Most o f the m eetings and seminars I attended were concentrated during the la s t h a lf o f my in te r n sh ip . Some o f the m eetings I attended included a Water and Sewer P r io r i t ie s m eeting in C harleston , an Appalachian R egional Commission m eeting a lso in C harleston , a m eeting concerning the West V irg in ia TRIPS program in C harleston and an energy con servation m eeting in W heeling. With regard to sem inars, I p a r t ic ip a te d in the Regional Housing Seminar at The C ollege o f S te u b en v ille and a two day Environmental Workshop in C harleston .

My work assignm ents during th e la t t e r part o f my in tern sh ip were fewer in number, but more tim e consuming.In A p r il, I was asked to develop a pamphlet d ea lin g w ith comprehensive development and land use re g u la tio n s which

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w il l be d is tr ib u te d to th e p u b lic a f te r p r in t in g . Along th e se same l in e s was the "Goals and Issues" pamphlet intended to spur d iscu ss io n w ith in the region concerning current is s u e s . In June, I began develop ing a l i s t o f a l l th ose groups and agen cies th a t should be involved in the lo c a l A-95 p ro cess . Once t h i s m ailin g l i s t was com pleted, a l e t t e r and q u estion n a ire was composed to be sen t to those on th e m ailin g l i s t in an attempt to make the A-95 p rocess more e f f e c t iv e and more e f f i c i e n t , ( s e e

• appendix fo r both sample work and in d ic a t io n s o f p a r t ic i p a tion )

I I I . D eta iled D escr ip tion o f th e Area

■ S te u b en v ille i s a c i t y in eastern Ohio lo ca ted about 90 m iles sou th east o f C leveland. I t i s the se a t o f J e fferso n County and i s s itu a te d on the Ohio R iver which forms th e boundary between Ohio and West V ir g in ia . Coal d ep o s its are abundant in the reg io n , and the c i t y i s a major in d u s tr ia l cen ter . The major a c t iv i t e s in the area in clu d e the manufa c tu r in g o f s t e e l and s t e e l p roducts, o f titan ium and fe r r o a l lo y s , and o f fa b r ica ted m eta ls . Paper and c la y products are a lso produced.

T ypical o f many c i t i e s in the B ast, heavy in d u s tr ie s are the major employers in the S teu b en v ille area . W ithin the immediate area , the W eirton D iv is io n o f R ational S t e e l , W heeling-P ittsburgh S te e l and Titanium Corporation are three o f the la r g e s t employers ( see F igure 3 )• Located in adjacent areas are b ig name in d u s tr ia l corporations such as C rucib le S te e l , Koppers, Quaker S ta te , American Cyanamid and o th e r s .To supply the. huge amounts o f energy required by th ese in d u s tr ie s a la rg e number o f power p la n ts have been con stru cted a l l along the Ohio R iver, making the reg ion one o f the la r g e s t producers o f e l e c t r i c power in the w orld .( see Figure 4)*The most obvious s id e e f f e c t o f the heavy in d u s tr ia l iz a t io n and numerous coa l-b urn ing power p la n ts i s one o f the worst

/

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Figure 3 - Map showing lo c a t io n o f Y/heeling- P ittsb u rgh S t e e l ’ s p rin c ip a l steelm aking, f i n i sh ing and fa b r ic a t in g p la n ts . Source: Wheeling P ittsb u rgh S te e l Corn. Annual R eport, 1968.

Note: As t h is map represe n ts the lo c a t io n o f only one company's p la n ts , i t becomes apparent how h ea v ily in d u s tr ia l iz e d the reg ion a c tu a lly i s .

P H - # .

s to a s s ! -- •-

Figure 4 - Location o f American E le c t r ic 1s power p la n ts in the Upper Ohio V a lley . Source: American E le c tr ic Power Annual R eport, 1967.

9 c o a l- f ir e d power p la n ts

Note: Ohio Edison op erates an a d d itio n a l p lan t at Toronto,Ohio and cu rren tly i s co n stru cting another huge p lan t d ir e c t ly south o f the Cardinal P la n t.I t should be noted th a t t h is map does not in clu d e the sco res o f p la n ts th a t serve the Akron, Cleveland and P ittsb u rgh a reas.

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cases o f a ir and water p o llu t io n in the n a tio n . Being lo ca ted in a r iv e r v a lle y only aggravates the a ir p o llu t io n problem as p o llu ta n ts become trapped. T ests u sin g a ir samples from c i t i e s across the n ation show S te u b en v ille to be in the top 10 percent fo r " d ir tin ess" fa c to r s e v e r ity and p a r t ic u la te s e v e r ity . The c i t y i s a lso in the top 10 percent fo r " corrosive” fa c to r s e v e r ity and su lfu r ox id es s e v e r ity (U .S . BPA, 197 1 ).

The se v e r ity o f the a ir p o llu t io n problem becomes apparent when one examines Table 2 below . Though the actu al d o lla r c o s ts are q u estio n a b le , e s p e c ia l ly s in c e th e estim a tes were made four years ago, the importance l i e s in the r e la t iv e c o s t s . According to the ta b le , the S te u b e n v ille - W eirton-W heeling reg ion has the eig&h h ig h est c o s t estim ate in vo lved w ith the e lim in a tio n o f a ir p o llu t io n . Consider merely the fa c t th a t the c o s t estim ate fo r the S te u b e n v ille - V/eirton-V/heeling reg ion i s alm ost as great as th a t fo r P h ila d e lp h ia , an area approxim ately 15 tim es g rea ter in p opu lation and more than 15 tim es grea ter in areal

Table 2 - Cost estim a tes involved in c lean in g up the a ir in the cou n try 's urban areas. Source: U .S. News and World R eport, August 17, 1970.

FRESHENING THE AIR—THE COST IN 5 0 URBAN AREASOfficial estimates of the cost, in

next five years, of ending air pollution' caused by industry, government facilities and private households in major metropolitan areas—

Albany/Schenectady/Troy, N .Y .... $ 11,900,000 Allentown/Beihlehem/Easton, Pa. $ 42,800,000Atlanta, Ga. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $ 35,300,000Baltimore, Md.. . . . . . . . . . . . . . . . . . . . . . . . . $ 84,200,000Birmingham, Ala. . . . . . . . . . . . . . . . . . . . . . . $ 94,800,000

Boston, f/a ss. . . . . . . . . . . . . . . . . . . . . . . . . . . $ 45.800,000Buffalo, N .Y .. . . . . . . . . . . . . . . . . . . . . . . . . . $ m ,3 C 3 ,0 3 0Charleston, Vi. Va. . . . . . . . . . . . . . . . . . . . 3 26,200,000Chicago, III. . . . . . . . . . . . . . . . . . . . . . . . . . . . . $801,390,000Cincinnati, O h io . . . . . . . . . . . . . . . . . . . . . $16.",3C0.GC0Cltveland, O h io . . . . . . . . . . . . . . . . . . . . . . $209,600,000Dallas/Fort Worth, Tex. . . . . . . . . . . . . . $ 15,700,000Dayton, Ohio . . . . . . . . . . . . . . . . . . . . . . . . . $ 42,200,000Denver, C o lo .. . . . . . . . . . . . . . . . . . . . . . . . . $ 67,105,000Detroit, Mich. . . . . . . . . . . . . . . . . . . . . . . . . . . $263,700,000Grand Rapids, Mich....... . . . . . . . . . . . $ 41,003,000Harrisburg, Pa. . . . . . . . . . . . . . . . . . . . . . . . . $ 16,800,000Hartford, Conn. . . . . . . . . . . . . . . . . . . . . . . . . $ 43,700,000Houston/Galveston, T e x .. . . . . . . . . . $ 38,500,000Indianapolis, Ind. . . . . . . . . . . . . . . . . . . . . . $ 45,C00,GC0ixansas City, Mo. . . . . . . . . . . . . . . . . . . . . . 3 29,400,000Knoxville, Tenn. . . . . . . . . . . . . . . . . . . . . . . . $ 13,800,000Los Angeles, Calif. . . . . . . . . . . . . . . . . . . 5 42,200,000Louisville, K y.. . . . . . . . . . . . . . . . . . . . . . . . .$114,83,7,209Milwaukee/Kenosha/Racine, Wis. $109,600,000Minneapoiis/St, Paul, fdinn........ 5 57,800,000Mobile, A la .... . . . . . . . . . . . . . . . . . . . .... $ 15,000,050New Orleans, La. . . . . . :. . . . . . . . . . . . . . . . $ 22,600,000New York. N.Y. . . . . . . . . . . . . . . . . . . . . . . . . $338,300,530Omaha, Nebr. . . . . . . . . . . . . . . . . . . . . . . . . . . $ 16,200,000Peoria, 111. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $ 25,000,000Philadelphia, Pa. . . . . . . . . . . . . . . . . . . . . . $199^00.000

Pittsburgh, Pa. . . . . . . . . . . . . . . . . . . . . . . . . $287,900,000Portland, Orcg. . . . . . . . . . . . . . . . . . ....... 23,100,000Providence/Pawtucket, R.I./

Fall River, Mass....... i. . . . . . . . . . . .$ 16.300,009Rochester, N.Y. .. . . . . . . . . . . . . . . . . . . . . . . $ 17.0Ci' COUSt. Louis, M o ... . . . . . . . . . . . . . . . . . . . . . . . . $ 2 5 7 , C?0Saginaw/Bay City, Mich.. . . . . . . . . . . 5 42.400,00CSan Francisco, Calif. .. . . . . . . . . . . . . . $ 17,700,000Scranton/Wilkes-Barre, Pa. . . . . . . . . $ 30,900,200Seattle/Everett/Tacoma, Wash..... $ 17,300,030South Bend, Ind. . . . . . . . . . . . . . . . . . . . . . $ 17,500,000Salt Lake City, U ta h . . . . . . . . . . . . . . . $ 17,000,000Steubenville, Ohio/

Weirton/Wheelinv, W.Va. . . . . . . . . $166,600.000Tampa, Fla. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $ 27,830,000 rToledo, O hio. . . . . . . . . . . . . . . . . . . . . . . . . . $ 4 5 ,5 0 0 ,0 0 0Tulsa, OMa. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $ 8,930.300 jYork, Pa. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . $ 13,7C:.0C0 IYoungstown/Warren, O h io . . . . . . . . $ 46,002,000 •Washington, D .C ... . . . . . . . . . . . . . . . . . . . $ 98,903,000 j

!C o s t o f a ir c le a n u p in h e s e 5 0 I

a r e a s w ill b e 4 . 4 b illio n d o l h r s in th e i n e x t f iv e y e a r s . . . a n d r e m o v in g jp o l lu ta n t s fr o m a u to e x h a u s t s in c i t i e s w ill a d d h u g e s u m s to th a t b ill.Source: U.S. Dept, of Health, education and W elhre

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I t might be very tem pting fo r one to a s so c ia te many o f the problems o f S te u b e n v ille ’ s CBD, which .w ill be described subsequently, w ith the fa c t th a t the c i t y i s lo ca ted in the Appalachian reg io n . I t i s im portant to r e a liz e th a t no such a sso c ia t io n e x i s t s , as the fo llo w in g paragraphs dem onstrate.

Though J e fferso n County was not part o f the Appalachian Region as d efined by the P r e s id e n t's Appalachian R egional Commission in 1964, i t was p laced in Local Development D is t r ic t Ho. 11 by the Appalachian Regional Commission in 1968 (R o th b la tt, 1971, 54, 1 5 2 ).Across the r iv e r in West V ir g in ia , Brooke and Hancock C ounties which are part o f the S teub en ville-V /e irton SMSA and S te u b en v ille trade area, were d esignated both in 1964 and 1968 as part o f Appalachia, Local Development D is t r ic t No. 17 . However, i t i s extrem ely important th a t one r e a l iz e th a t the S te u b en v ille area, though le g a l ly p art o f Appalachia, n e ith e r s u ffe r s from many o f th e problems a sso c ia ted w ith the Appalachian Region nor do those s im ila r problems which do e x i s t show s ig n s o f being as acute as th ose in the la r g er reg io n .

In accordance w ith Odum's concept o f reg ion , Appalachia i s fa r from homogeneous with regard to p a ttern s o f u rb an iza tion , economic a c t iv i t y and eth n ic background. The area a sso c ia ted w ith the Ohio R iver V alley w ith i t s la rg e c i t i e s and heavy in d u s tr ie s i s v a s t ly d if fe r e n t from the rural se ttlem en ts in c en tra l and southern Appalachia (R o th b la tt, 1971, 5 3 ) . Examination o f the s t a t i s t i c s in Table 3 shows t h is la ck o f hom ogeneity, exem p lified most s tr ik in g ly by the f ig u r e fo r median income which shows th e S teu b en v ille-V /e irton SMSA to have a median income equal to 91 percent o f the average fo r a l l 243 SMSAs in 1970. This co n tra sts sharply w ith many other areas o f Appalachia where median income i s considered high i f i t reaches 75 percent o f the n a tio n a l average.The s t a t i s t i c s •a lso show 4 3 .3 percent o f th o se employed as having jobs r e la te d to m anufacturing. This f ig u r e a lso

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co n tra sts sharply w ith many o th er areas o f Appalachia where manufacturing i s freq u en tly n o n -e x is te n t . The S teu b en v ille area i s ob v iou sly much b e tte r o f f economica l ly than most o f Appalachia. I t s r e s id e n ts enjoy a standard o f l iv in g comparable to th ose l iv in g in areas o f s im ila r s iz e in the East and Midwest.

Table 3 - Comparison of se le c te d v a r ia b le s between the •S teu b en ville-W eirton SMSA and the average fo r a l l 243 SMSAs. Source: County and C ity Data Book. 1972.

v a r ia b le S teub en ville-W eirton SMSA 243 SMSAs

median fam ily income 39,563 310,469fa m ilie s below low income le v e l 8.0?o 8 .5 $housing u n its owner occupied 74.2$ 59.-5$fo re ig n stock 18.7$ 20.-0$employed in m anufacturing 43.3^ 25.8$w hite c o l la r workers 35 .4$ 52 .4$

The General S itu a tio n

S teu b en v ille has been exp erien cin g a s itu a t io n s in ce the la t e 1950s s im ila r to th a t experienced by many c i t i e s o f the same s iz e in the East and Midwest; d e c lin in g p op u la tion , d e c lin in g d en sity w ith in the cen tra l c i t y , and a trend toward suburbanization . As a r e s u l t , the cen tra l c i t y , lo ca ted in the v a l le y , has become the home fo r the poor, th e Black and the e ld e r ly , w hile those w ith h igher incomes and g rea ter opportunity move above the v a lle y to numerous areas known c o l le c t iv e ly to lo c a l r e s id e n ts as "up on the h i l l . " In ad d ition to a l l those problems a sso c ia ted w ith t h i s s te r e o ty p ic s i tu a t io n , the S teu b en v ille area has an a d d itio n a l problem th a t i s common to many reg ion s o f A ppalachia, namely, th a t a high percentage o f the young ad u lt p opu lation moves

away from the area, the reason u su a lly g iven as lack of. opportu n ity . This rep resen ts more than merely a p opu lation lo s s , but an enormous drain on the area’ s p rob lem -so lv in g c a p a b i l i t ie s .

From t h is general s itu a t io n stems the problem o f the d e c lin in g importance o f S teu b en v ille* s cen tra l b u sin ess d i s t r i c t . The s itu a t io n did not develop over n ig h t. I t had been ta k in g p lace s in ce the la t e 1950s*For y ea rs , th ere have been few improvements made by in d iv id u a l b u sin e sses to attempt to h a lt the d e c lin e . Cooperative e f f o r t s during the same period were none x is t e n t . This t o t a l in a c tio n on the part o f community b u sin ess and p o l i t i c a l lea d ers i s somewhat in c o n s is te n t w ith the great pride area r e s id e n ts m anifest fo r th e ir lo c a l i t y , v e r b a lly . Or, i s i t ? Can the re s id e n ts or peop le who work and shop in d ir ty , d e te r io r a t in g areas become so accustomed to them a fte r years o f the same c o n d itio n s , th a t they make no demands on lo c a l b u sin ess and government fo r improvement? I am convinced th a t fa m il ia r i ty did not breed contempt in S te u b e n v ille , but only an acute case o f apathy.

I t i s a common view th a t Americans are g en er a lly s t ir r e d toward a ctio n by c r i s e s , both re a l and crea ted .In t h is regard , the merchants o f S teu b en v ille ex h ib ited th a t they were 100^ American. Though S te u b e n v ille ’ s ce n tra l b u sin ess d i s t r i c t was d e te r io r a t in g long b efore 1973» i t was not u n t i l the w inter o f 1973-74 th a t the merchants p erceived th a t a c r i s i s s itu a t io n was upon them as co n stru ctio n on the new Fort Steuben Mall was nearing com pletion . The problems the Downtown merchants had refused to see fo r years became the obvious when th e ir f a c i l i t i e s were con trasted w ith the new r e t a i l f a c i l i t i e s . In a sen se , they were driven in to a c tio n , but in r e a l i t y i t was too la t e and th ere e x is te d too many o b s ta c le s p reclu d in g them from ach iev in g any r e s u l t s .

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A ctors. P ercep tio n s , R oles

I have d iv id ed the p r in c ip a l a c to rs in to three groups: the Brooke-H ancock-Jefferson M etropolitan Planning Commission, lo c a l businessm en and p o l i t i c a l lea d ers and th e la s t group which rep resen ts somewhat o f a l in k between the two, the lo c a l Chamber o f Commerce s t a f f . These groups by no means co n s is te d o f homogeneous b od ies; the Chamber o f Commerce was d e f in i t e ly the most u n ited in i t s aims. As a member o f the f i r s t group o f a c to r s , the planning commission, I am able to speak with some au th ority concerning our agency's p ercep tion o f the problem and i t s approach in d ea lin g w ith i t . Having met w ith the s t a f f o f the Chamber o f Commerce,I can a lso speak w ith c e r ta in ty about th a t group's p ercep tio n . I t i s w ith the remaining group o f a c to r s , the lo c a l b u sin essmen and p o l i t i c a l le a d e r s , th a t I am forced to r e ly on my p ercep tion o f th e ir p ercep tio n s in examining th e ir r o le in the problem. I am basing th e v a l id i t y o f my own p ercep tion s on my in tim ate knowledge o f the area, i t s h is to r y and i t s p eo p le , and in a d d itio n , d ir e c t communications w ith those who have easy access to t h is group. I am f u l ly aware o f the fa c t th a t t h i s rep resen ts a l im ita t io n on t h is se c t io n o f the rep ort, but o b v io u sly , one w ithout a remedy a t th e p resen t tim e.

Brooke-H ancock-Jefferson M etropolitan Planning Commission' X

I b e lie v e i t i s alm ost a u n iv ersa l o b je c t iv e in the United S ta te s , fo r p lanning a g en c ies , whether c i t y , metrop o lita n or re g io n a l, to preserve the ce n tra l b u sin ess d i s t r i c t as a v i t a l cen ter o f b u sin ess , and in t h is r e sp e c t , our agency was no d if fe r e n t from o th e rs . The m etropolitan planning agency perceived the problem as a lo c a l one. I t was w i l l in g to g iv e te c h n ic a l a ss is ta n c e to S teu b en v ille p o l i t i c a l and b u sin ess lea d ers upon req u est, but i t was re lu c ta n t to i n i t i a t e any p ro p o sa ls , knowing only too w e ll

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the c i t y ' s " th is i s not your concern" a t t itu d e . Though sev era l p rop osa ls fo r redevelopment o f S te u b e n v ille 's CBD la y around, the o f f i c e , there e x is te d an underlying f e e l in g th a t they represented dreams never to be r e a liz e d .As sta ted in the agency's 1973 Annual Report, b u sin e sse s were lo c a t in g o u ts id e the CBD because o f the l a t t e r ' s narrow s t r e e t s and lim ite d parking. In a d d itio n , much o f the a re a 's buying power was flo w in g o u ts id e the area to reg io n a l suburban m alls in th e P ittsb u rgh area and to the P ittsb u rgh CBD i t s e l f . ' This was f a c i l i t a t e d by the com pletion o f th e lim ite d access U.S. Route 22 b rin g in g th e Golden T riangle in P ittsb u rgh w ith in a 50 minute d riv e from V/eirton, West V irg in ia across the r iv e r from S te u b e n v ille . The opening o f the new Fort Steuben Mall in S te u b e n v ille 's West End would mean the f in a l blow to the CBD. Though sta te d as a d e s ir a b le o b je c t iv e , the sav in g o f the CBD appeared h o p e le ss . The m etropolitan planning agency's p ercep tion was ch aracterized by re lu cta n ce to attack the problem and a p e s s im is t ic outlook when observin g p resen t trends th a t appeared ir r e v e r sa b le .

lo c a l B u sin ess and P o l i t i c a l le a d e rs

I t i s d i f f i c u l t to d escr ib e t h is group's p ercep tion o f the problem o f the CBD b efore 1973* s in c e i t appears h ig h ly probable th a t they recognized no such problem, lo c a l b u sin e sses in the CBD^continued to make good p r o f i t s w e ll in to the la t e 1950s, not because they provided a p lea sa n t atmosphere fo r shoppers, convenience, or wide s e le c t io n , but m erely because they had no com p etition . As the c i t y spread westward, a nev: commercial s tr ip developed along Sunset Boulevard in the 1960s. This should have provided m otivation fo r the downtown merchants to re fu rb ish t h e ir s to r e s and redevelop the area, but i t d id n 't . A few s to r e - fr o n ts were rem odelled , but there were no coop erative e f f o r t s made to improve the appearance o f the area as a whole.

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The downtown area s t i l l p ossessed the r e g io n 's only major department s to re by 1973» and lo c a l b u sin essmen ev id e n tly f e l t t h is would be a strong enough a t tr a c t in g fo rce to b rin g people to the CBD. As the S teu b en v ille area i s not a h igh ly m obile one, i t was apparently f e l t th a t people who had come to the CBD fo r years would continue to do so out o f h a b it . And to a ce r ta in degree, t h i s was the ca se . To t h is day, you can hear m iddle-age and o ld er women on the V est V ir g in ia sid e say th a t they are "going over town to do some shopping." T h is, however, was a t e r r ib ly inadequate assessm ent o f th e ir market.

For th ree or four years previous to 1973, the rumor among lo c a l r e s id e n ts was th a t one o f the la r g e chain department s to r e s from the P ittsb u rgh area, probably Gimbels or Hornes, was going to lo c a te up on the h i l l in S te u b e n v ille . For th e lo n g est tim e no p lans were announced. Seeing t h is p o s s ib i l i t y as a th rea t to th e ir b u s in e ss , lo c a l b u sin esses may have done th e ir b est to see to i t th at o ther department s to r e s were kept ou t.

I t was in 1973 th a t a Pennsylvania-based developer revea led p lans fo r an enclosed m all to be b u i l t in Steubenv i l l e ' s West End. The p r in c ip a l anchor s to re was to be Kaufmanns o f P ittsb u rg h , re la ted to the huge n a tio n a l chain of May Department S to r es . Local r e s id e n ts were e la te d , lo c a l businessm en shocked.

Chamber o f Commerce ‘ x-

VZhen I r e fe r to th e Chamber o f Commerce, I am speaking o f two in d iv id u a ls in p a r t ic u la r who had s ig n if ic a n t in v o lv e ment, the E xecutive Secretary o f the agency and th e D irecto r o f th e Downtown B u sin ess A sso c ia tio n who worked c lo s e ly w ith the Chamber o f Commerce. Both o f th e se peop le are very dynamic in d iv id u a ls . Having spoken with them, I am convinced th a t th e ir p ercep tion o f th e problem was not much d if fe r e n t than th a t o f the p lanning com m ission 's. Their r o le s can be

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viewed as th a t o f go-betw eens. B esid es a c tin g as a lin k "between the p lanning commission and the b u sin ess communi t y , the s t a f f o f t h is organ ization a lso served as a lin k between th ese two groups and the p o l i t i c a l le a d e r s .

Sharing the same p ercep tion o f the problem s itu a t io n was not the only th in g the Chamber o f Commerce had in common w ith the p lanning commission - they a lso shared th e ir f r u s tr a t io n s . The Chamber o f Commerce, l ik e BHJ, was expected to perform m iracles w ithout any reso u rces . The Secretary o f the Chamber explained to me th a t h is c o n st itu e n ts d id , indeed, want to do something about the downtown area, but g e t t in g them to con tr ib u te f in a n c ia l ly was l ik e knocking heads aga in st a w a ll . I r e a l iz e t h is does not represen t an e n t ir e ly unique s itu a t io n . However, whereas lack o f support fo r r e v i t a l iz a t io n among the b u sin ess community could be viewed as unfortunate in some other p la c e s , i t becomes a s itu a t io n almost im possib le to comprehend in a p lace l ik e S te u b e n v ille , where th e a e s th e t ic , fu n c t io n a l, and b io lo g ic a l environments are so horrendous.

The Proposal

I am not sure how or when BHJ o r ig in a l ly got involved in form ulating a proposal fo r saving the S te u b en v ille CBD.I am tempted to say th a t the D irecto r o f the Downtown B usiness A sso c ia tio n contacted our E xecutive D irector req u estin g such a p rop osa l, but I ca n 't say t h i s w ith any c e r ta in ty . I am c e r ta in th a t the C ity o f S teu b en v ille made no such req u est.

My input w ith regard to the p ro jec t began on January 3 , 1974 when I sa t in on a m eeting w ith the D irecto r o f the Downtown B u sin ess A sso c ia tio n , our D irecto r and a temporary employee who had drawn up a redevelopment proposal fo r the e n t ir e S te u b en v ille downtown area p revious to my a r r iv a l .The D irecto r o f the Downtown B u sin ess A sso c ia tio n had come to review the p ro p o sa l. I t was based on a p lan done p rev io u sly by a p r iv a te co n su lta n t. Both d ir e c to r s agreed th a t a more

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d e ta ile d proposal should be developed th at would in clu d e only a s ix b lock area th a t con ta in s almost a l l o f the commercial estab lish m en ts w ith in the CBD* The proposal was to be shown at the annual m eeting/d inner o f the S te u b en v ille Downtown B u sin ess A sso c ia tio n , in the in te r e s t o f moving th e se in d iv id u a ls toward some type o f a c tio n in l ig h t o f the new Port Steuben M a ll's opening the fo llo w in g month.

While on ly th ree working weeks e x is te d from the day the p ro jec t was handed to me to the day i t was to be shown, the actu a l tim e I was ab le to spend on the p ro jec t was fa r l e s s . With only a sm all s t a f f , in order to fu n ctio n prope r ly , a reg io n a l p lanning agency cannot afford to have any o f i t s t a f f members work on one p r o je c t , e x c lu s iv e ly , fo r any g iven period of tim e. In going through the d a ily lo g I kept throughout my in te rn sh ip , I fin d th a t I spent four f u l l days and four h a lf days working on th e S teu b en v ille CBD p rop osa l.

Actual work on the projecfLbegan on January 18 when I went to S teu b en v ille to c o l le c t in form ation on the CBD.The afternoon was spent walking along 4th S tr ee t and Market S tree t tak in g note o f the co n d itio n o f s to r e - fr o n ts , the s tru c tu r es them selves, the lo c a t io n o f f i r e p ro tec tio n s e r v ic e s , a ccess to the s to r e s fo r d e liv e ry purposes and the c h a r a c te r is t ic s o f the people p resen t in the CBD.Upon retu rn in g to the o f f i c e , the in form ation c o lle c te d was d iscu ssed w ith the D irec to r .

The general s itu a t io n can be summed up in the fo llo w in g words: The g rea ter percentage o f the s to r e -fr o n ts required major rem odelling . Most o f the s tru c tu res ly in g w ith in the area being considered appeared s tr u c tu r a lly sound. By c lo s in g o f f 4th S tree t and Market S tr ee t to p ro h ib it t r a f f i c , in the event a p ed estr ia n m all was co n stru cted, a ccess to the s to r e s would s t i l l be p o ss ib le from rear a l le y s . These a l le y s already served as p ick up and d e liv e r y sp a ces . As mentioned e a r l ie r in the rep o rt, many o f the

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people observed in the area were lower c la s s , the aged, in sh o r t , th ose w ith the le a s t o p p o rtu n itie s and the l e a s t m o b ility . There e x is t at the presen t time no t r e e s , no greenery, no p la ce s fo r r e s t in g and very few p la ce s where one i s p ro tected from the elem en ts.The t o t a l environment as i t e x i s t s i s d ep ressin g and in no way co n tr ib u tes to the h ea lth , happiness or w elfare o f the people who are subjected to i t .

J u st as the con d ition o f the CBD i s e a s i ly d escrib ed , so i s th e p rop osa l. Taking in to co n sid era tio n th e r e g io n 's c lim a te , frequent ra in in the spring and summer and snow in the w in ter , and the bad a ir q u a lity , i t appeared obvious th a t the proposal would c a l l fo r an enclosed sp ace . The space to be en closed was e a s i ly determ ined. I t co n sis te d o f four b lock s along 4th S tr ee t and fo u r b lo ck s along Market S tr ee t c r ea tin g a t-sh a p e enclosed space ( s e e Figure 5 ) . An ex ten sio n o f the roo f to 5th S tr ee t was included to provide s h e lte r from the elem ents between the m all and the proposed Ohio V alley Savings B u ild in g to be constru cted at the 5th and Market lo c a t io n . Though I b e lie v ed the concept should have been r e s tr ic te d to o n e - le v e l , our D irec to r f e l t i t should be a tw o -le v e l mall which would thereby crea te a d d itio n a l ren tab le r e t a i l space which th e lo c a l merchants would see w ith a favorab le eye . However, I b e lie v e he f a i l e d to r e a l iz e th a t the lo c a l merchants would view a tw o -le v e l m all as an over-am bitious p ro jec t which would req u ire too great an_ amount o f c a p ita l investm ent. I t was b e lie v ed th a t by u sin g great amounts o f s t e e l products in a l l forms fo r co n stru c tio n , c o s ts would be kept low er s in c e many s t e e l products are produced lo c a l ly and the m all would thereby be a huge advertisem ent o f the r e g io n 's c h ie f product. The other fe a tu r e s o f the m all included a l l o f those n e c e s s i t ie s and am en ities u su a lly found such as adequate parking, fo u n ta in s , p la n ts and p len ty o f se a tin g a rea s.

At 11:00 on January 28, I d iscu ssed the proposal w ith th e Secretary o f the S te u b en v ille Chamber o f Commerce and th e

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Figure 5 - S te u b en v ille C entral B u sin ess D is t r ic t and area included in the m all p rop osa l. Source: From o r ig in a l map done by the author.

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D irector o f th e Downtown B u sin ess A sso c ia tio n along w ith our D irec to r . R eaction to the proposal was very fa v o ra b le . Most proposals done by planning agen cies are shelved a f te r they have been view ed. Mine was n o t.I t was shelved b efore i t was view ed. Though the proposal n et w ith extrem ely favorab le r e a c t io n , i t was decided , on account o f the f a c t th a t the C ity o f S teu b en v ille had not requested BKJ to develop the p rop osa l, a proposal coming from the agency and shown at the annual dinner would be h ig h ly u n d esira b le . As r id ic u lo u s as i t sounds, i t was then and i s now, th ese typ es o f p e tty d iffe r e n c e s and lack o f cooperation th a t occur co n sta n tly in the c i t y o f S te u b e n v ille . The mayor's o f f ic e and the lo c a l p lanning agency b e lie v e i t i s th e ir r e s p o n s ib il ity to improve the c i t y , not the reg io n a l p lanning com m ission 's. This s ta te o f a f fa ir s i s most unfortunate and the c i t y s u f fe r s g r e a tly from i t .

At the same m eeting on January 28, the th ree p a r t ie s involved decided to have me do se v era l sk etch es th a t would su ggest in extrem ely general terms what the CBD might look l ik e i f the m all concept was implemented. These sk etch es were to be shown at the d inner, but no re feren ce was to be made as to where the sk etch es had been ob ta in ed . The sk etch es were shown at the dinner as the newspaper c lip p in g in d ic a t e s . ( see Figure 6 ) . The a r t i s t referred to in the column i s , o f course, me.

A nalysis

A f u l l nine months has passed s in ce the Downtown B u sin ess A sso c ia tio n 's annual m eeting and dinner took p la ce at the tim e o f t h i s w r it in g . During th a t tim e th ere has been no major a c tio n taken to a rrest th e decay th a t con tin u es in the CBD. During t h is same tim e period another one o f S te u b e n v ille 's downtown th e a te r s has c lo sed i t s doors le a v in g one th e a te r remaining in the CBD. Two new th e a te r s

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Figure 6 - Proposal re feren ce . Source: Wheeling I n te l l ig e n c e r . January31, 1974 ----------- --------

n nerchanfs Consio©r off Counteraction j

By DAVID NICKELL The Intelligencer Staff '

One of the ideas emerging from a meeting Wednesday night sponsored by

j the Steubenville Downtown Business \ Association was to fight a mall with a

mall.The suggestion was one of many ideas

considered by merchants and city and county officials along with other members of the Steubenville Area Chamber of Commerce and interested citizens who j met to discuss what could be done about i revitalizing the downtown area in light of ! the approaching opening of the Fort ** Steuben Mall. j

. Joseph D. Kennedy, executive vice j President of the chamber, emphasized j that the mall concept for downtown was j “strictly a 'what-if type of thing." j Kennedy then presented a series of artists’ conceptions showing Denmark’s and ’ The Hub encased in glass complete with steel-trussed roofs and skylights. In one ! conception, the city’s main intersection at

| Fourth and Market Streets would be | closed to traffic and a water fountain |

would be built in the center of it.Another dramatic proposal was sub- .

milted by Steubenville Councilman j Richard Perkins who suggested that ; presently vacated buildings on the side of j Third Street nearest the river be bought

! by the chamber and the city, with the help | of urban renewal funds, torn down and

replaced with tiered parking. Perkins’ parking garages would consist of two \ levels underground and two levels above ' the street. j

Those present appeared to agree with ; Lawrence Good of the L.S. Good & Co., Wheeling, that parking and traffic flow were the most important areas of con* • sideration. Good remarked that the mall concept for downtown had pluses and minuses, but he questioned the time in volved for construction and the interim

' traffic tie-ups which would be caused.

Joseph Bardm orThe Hub" called"the ; downtown enclosed mall concept “a way- j off idea" and added, “I think this is a way j of defeating immediate action."

Bardin also scored downtown sales as an effective tool for attracting people into downtown and competing with the new mall. He endorsed instead the ideas and

, proposals which will be emerging from a | group of young people and others who will

be making recommendations to the i Downtown Business Association. Ideas j already suggested by the group, he said, j include demonstrations by high school i bands, art exhibits, concerts and perhaps I even a football-throwing contest.

Bardin emphasized that the objective in any revitalizing plan should be to “make people realize that downtown is the

t character of Steubenville."He said that people can see shopping

m alls anywhere but downtown i , Steubenville is its own unique character. >

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w il l open soon in the Port Steuben M all. W ithin a few months, the new suburban mall w i l l add a th ird major department s to r e . The message fo r downtown i s c le a r .I f anything sym bolizes Downtown S teu b en v ille a t the p resen t, i t i s the l a s t hours of the T ita n ic . The downtown merchants scraped the ic e in March when the new m all opened.

More than a few lo c a l businessmen and p o l i t ic ia n s f e e l the CBD w i l l continue as the r e g io n 's economic cen ter because the Ohio V alley Savings and Loan A sso c ia tio n i s co n stru ctin g th e ir new headquarters in the CBD. I t i s shallow th in k in g , and might I add very rep resen ta tiv e o f the in a b i l i t y o f lo c a l r e s id e n ts to recogn ize problem s, to b e lie v e a s in g le b u ild in g can re sto re v i t a l i t y to a dying urban area. Not one o f the downtown merchants would deny th a t the l i o n ' s share o f the r e g io n 's purchasing power r e s id e s up on the h i l l - t o p s above S teu b en v ille or across the r iv e r in West V ir g in ia . Y et, they f a i l to see th a t t h i s purchasing power must be competed fo r in a r e a l i s t i c way. As an example, t h is year the downtown s to r e s in i t ia t e d the "park and shop" promotion. In the most l ib e r a l way o f th in k in g t h is i s not a t a l l a prom otion. I t s only e f f e c t i s to e q u a liz e , as shoppers at the suburban s to r e s g et fr e e parking a l l the tim e. The concept o f "park and shop" in most c i t i e s assumes th a t there i s something worthwhile to come downtown fo r and thereby park. Several other piecem eal e f f o r t s such as the one ju s t d escribed have been t r ie d . Most o f the o th ers are even more lu d icro u s as attem pts to put the downtown area on equal fo o t in g w ith th e m a ll. These e f f o r t s in clu d e co n certs , fa sh io n shows, an E aster egg hunt and a fo o tb a ll-th ro w in g c o n te s t l

The S te u b en v ille area has always been very slow in fo llo w in g n a tio n a l tren d s. I t appears th a t as the nation now lo o k s w ith renewed in te r e s t at the ce n tra l c i t i e s , the S te u b en v ille area i s ju s t catch in g on to the trend toward suburbanization which was rampant in the r e s t o f the country

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during the 1950s and 1960s. I am not alone in my op inion concerning t h is tim e la g . The Secretary o f th e S te u b en v ille Chamber o f Commerce, who was o r ig in a l ly from another area, made the remark at the Regional Housing Seminar in March th a t i t was obvious to him th a t the area’ s th in k in g i s h igh ly rep resen ta tiv e o f the 1950s.

S tu d ies and ob servation s made in a sm all town in Pennsylvania (L ew is, 1972) in d ica te a r e la t io n sh ip between a town’ s mental ou tlook , s o c ia l temperament and p sy ch o lo g ica l atmosphere and i t s in a b i l i t y to so lv e p ress in g problem s.I b e lie v e t h is r e la t io n sh ip can be applied to an e n t ir e region as w e ll as a s in g le town. The reason I am fo cu sin g on the reg ion rath er than the case o f S teu b en v ille a lon e, i s because S te u b e n v ille 's in a b i l i t y to cope with i t s problems i s not unique w ith in th e reg io n . The r e s t o f the r e g io n 's c i t i e s and towns e x h ib it t h is same in a b i l i t y to so lv e lo c a l problem s. As in the case o f S te u b e n v ille , economics i s a poor scapegoat fo r the in a b i l i t y to cope w ith lo c a l problems demonstrated in the two co u n ties across the r iv e r . Hancock County c o n s is te n t ly has the h ig h est per c a p ita income in West V ir g in ia year a f te r year and Brooke County u su a lly ranks near the to p . While t h is f a i l s to p lace them among the w e a lth ie s t co u n tie s in the country, i t n ev er th e le ss g iv e s them good stand ing on a n a tio n a l s c a le .*

Like the sm all town in P ennsylvania th a t Lewis d escr ib ed , the S teu b en ville-W eirton area has not experienced rapid p opu lation growth or economic expansion fo r decades.At the same tim e t h i s a rea 's p opu lation remained s ta b le , growth in a l l forms became a nationw ide goa l fo r c i t i e s and reg ion s across the n a tio n . I t was only natural th a t the area’ s r e s id e n ts develop con scious or unconscious f e e l in g s o f in f e r io r i t y

*The 1972 County and C ity Data Book shows the fo llo w in g f ig u r e s fo r per ca p ita income: Hancock C o., West V irg in ia 33»055 ( 1 s t )

Brooke C o., West V irg in ia $2,821 (4 th )fo r comparison sake-Pima C o ., Arizona $2 ,982

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when they began hearing and reading about tremendous growth in C a lifo r n ia , F lo r id a and even nearby Columbus and the am en ities th ese p la ce s had to o f f e r . The area f a i le d to share in the in ta n g ib le f e e l in g s o f m o b ility , freedom and p ro sp er ity th a t seemed to grip the r e s t o f the country during the post-w ar p eriod .

U n til r e c e n t ly , w ith the com pletion o f the lim ited access U .S. 22 s tr a ig h t in to P ittsb u rg h , the 45 m iles th a t separated S te u b en v ille from P ittsb u rgh might as w ell have been 4500 m ile s . Except fo r lo y a lty to th e P ir a te s and the S te e le r s , the two areas had few th in g s in common. P ittsb u rg h in the 1950s became bold and in n o v a tiv e , try in g d esp era te ly to change the image o f the c i t y from a smoky, d ir ty s t e e l town to a modern corporate headquarters c i t y and research c e n ter . Today, P ittsb u rgh i s headquarters fo r more b lu e-ch ip corporations than any c i t y in the country except New York and Chicago (Fortune, S e p t . , 1974, 7 7 ) . S tr in g en t a ir and w ater p o llu t io n co n tro ls made tremendous improvements in P ittsb u r g h 's environm ent. During the same p er io d , the S teu b en v ille area changed very l i t t l e . Water and a ir p o llu t io n l e v e l s are as severe now as in the p a s t , lo c a l r e s id e n ts f e e l the p o llu t io n w i l l always be th e re , as though i t were part o f the natural environment. . Of cou rse, to lo c a l r e s id e n ts the p o llu t io n rep resen ts th e ir bread and b u tte r . I t pays fo r th e ir homes, th e ir ca r s , v a ca tio n s and retirem ent in F lo r id a . I s o la t io n has precluded inform ation from g e t t in g in to the region which would inform them th a t i t i s a c tu a lly p o s s ib le to minimize p o llu t io n and s t i l l have jo b s .

This b rin gs us to what I b e lie v e i s th e cen tra l cause o f the r e g io n 's apathy concerning the co n d itio n o f lo c a l urban a rea s. The r ich o f the reg io n , who might have otherw ise contributed to the prob lem -so lv ing c a p a b i l i t ie s o f th e reg io n , have not found i t n ecessary to do so . They have always been able to escape the environm ental nightmare by seek in g refuge at th ose p la ce s where the r ich u su a lly gather in P ittsb u rg h , i . e . Fox Chapel, Upper S t . C la ir Country Club, e t c . , or they

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may spend much o f th e ir time in F lo r id a or the Bahamas.In crea sin g a fflu en ce and m o b ility has brought

F lo r id a and other areas much more w ith in the reach o f the middle c la s s r e c e n t ly , so th a t v a ca tio n s have the e f f e c t o f making th e h o rr ib le l iv in g environment bearable when one knows i t i s only a m atter o f tim e b efore he can once again le a v e the a ir p o llu t io n and d ir t and head fo r clean a ir and sunsh ine. In a d d itio n , th e id ea th a t one w i l l escape from the p la ce as soon as he r e t ir e s o f fe r s some co n so la tio n to the steelw ork er during the v is u a l ly h o r r ify in g route to work each day.

Combined w ith th e lack o f any attem pts in tr y in g to change the s ta tu s quo ex h ib ited by th ese two groups, th ere i s th e fa c t th a t the young a d u lts lea v e th e area at th e ir f i r s t op portu n ity . A weekend tr ip to Columbus or Washington D.C. or the 385 a ir fa re from P ittsb u rgh to Miami has been the d ec id in g fa c to r to le a v e the Steubenv i l l e area fo r la rg e numbers o f young a d u lts .

Higher p ercen tages o f the popu lation r e c e iv in g c o lle g e degrees has had l i t t l e e f f e c t on the prob lem -so lv ing c a p a b ility o f the reg ion s in ce many o f th e graduates lea v e the area . As members o f t h i s group le a v e , they are replaced by a con stant stream o f poor and uneducated peop le from the southern p a r t s . o f West V ir g in ia , Eastern Ohio and Western P ennsylvania a ttra c ted to the area by high wages in the s t e e l in d u stry . As a r e s u l t , th ere are no groups w ith in the reg ion who f in d any need to seek change or so lv e lo c a l problem s. I t i s much sim pler to escape e ith e r tem porarily or permanently or merely screen out the problems a lto g e th e r from o n e 's mind.

This deeply rooted apathy, the main c h a r a c te r is t ic o f the reg io n a l p e r s o n a lity , i s the cause o f a l l the f a i lu r e s in v o lv in g p lann ing, development or community a c tio n in th e reg io n . I t destroyed my proposal b efore i t was ever rev ea led . This same reg io n a l apathy aborts id ea s b efore they are ever perm itted to grow and d evelop . There are no

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‘ in d ic a t io n s th a t t h i s s itu a t io n w i l l change in the near fu tu r e .

IV, E valuation o f the In tern sh ip

The fa c t th a t the Brooke-H ancock-Jefferson M etropolitan Planning Commission i s a m etropolitan agency and a m u lt i- s ta te agency o p era tiv e in both the s ta te s o f Ohio and West V irg in ia was very advantageous w ith resp ect to my lea rn in g exp erien ce . Being a m etropolitan agency, our o f f ic e was forced to confront a unique s e t o f problems encountered by such a g en c ie s , I observed th e se problems in my d a ily work, but th e y . were most apparent at Commission m eetings and, o f course, in the newspapers where they q u ite o ften took the form o f d iv is io n s and r iv a lr i e s w ith in the m etropolitan reg io n . Being a m u ltis ta te agency, once again , connotes another s e t o f unique problem s. These p o in ts at is s u e I observed in a s im ila r manner. Working w ith in the s ta te s o f Ohio and West V irg in ia was very b e n e f ic ia l in i t s e l f . Being in vo lved w ith the S ta te o f Ohio I was exposed to many o f the p ro cesse s of s ta te government as they fu n ctio n in one o f the n ation *s la r g e s t s t a t e s w ith resp ect to p opu lation and one o f i t s most h igh ly in d u s tr ia l iz e d . At the same tim e, being in volved w ith West V irg in ia , I was fo rtu n a te in ga in in g a more in tim ate view o f s ta te government as can only be done in a sm aller s t a t e . Had I served as an in te rn in C a lifo r n ia , New York or I l l i n o i s , I never would have had the opportunity to attend many o f the m eetings I was p resen t a t nor would I have been able to meet th ose peop le who hold some o f the most re sp o n sib le p o s it io n s in s ta te government.

As I mentioned e a r l ie r , my in tern sh ip was stru ctured so th a t I worked on a s e r ie s o f one or two week assignm ents, some lo n g er . I am p leased i t was stru ctured in t h i s way.To some, one or two la rg e assignm ents appears to be a b e t te r framework from which to work w ith . I tend to b e lie v e one or two la rg e assignm ents might l im it or con fin e the scope o f

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on e's p r a c t ic a l exp erien ce , the experience being the main reason fo r the in te r n sh ip . To en rich t h is p r a c t ic a l ex p er ien ce , I b e lie v e i t i s e s s e n t ia l fo r the in tern to attend as many m eetings and seminars as p o s s ib le . Because my D irecto r had s im ila r v iew s, I was most fo rtu n a te in having the opportunity to do so .

One o f the n eg a tiv e a sp ec ts o f my in tern sh ip was re la ted to the fa c t th a t my ed u cational background and wide tr a v e l experience was freq u en tly ignored . I t was apparent th a t some o f the staff"members o f the p lanning - agency were v ic tim s o f i s o la t io n to the same degree as th e ir c o n s t itu e n ts . T herefore, re feren ces as to how th in g s are done in C a lifo r n ia , Arizona or F lo r id a u su a lly met w ith o p p o sitio n or complete d is in t e r e s t , a very fr u s tr a t in g experience s in ce many tim es the so lu t io n th a t worked in C a lifo rn ia or F lo r id a would a lso work in the BHJ reg io n . I am convinced th a t t a s t e , the use o f im agination in so lv in g problems and the r e a liz a tio n - o f numerous p o te n t ia l a lte r n a t iv e s in a problem s itu a t io n are products o f constant exposure to d iv erse natural and human environm ents. I know, in my l i f e , I have had g rea ter exposure, in t h is regard, than most at BHJ. This fa c t should not have produced resentm ent, but u n fortu n ately it." d id .

My b r ie f academic tr a in in g at the U n iv ersity Of Arizona p r io r to my in tern sh ip was very v a lu a b le . In sev era l assignm ents I was able to draw upon th in g s I had learned in Geography 257 and P lanning Methods. The courses I had taken in Urban S a n ita tio n and T ransportation Planning were u se fu l in the sense th a t they had introduced me to term inology so th a t I was able to understand many terms used in the o f f i c e . I was a lso ab le to r e la te to concepts and th e o r ie s d iscu ssed in Planning Theory and, as a r e s u l t , b e lie v e in the concept o f the p lanner as an advocate more than ever . I b e lie v e i t would have been to my advantage to have had P lanning Law p r io r to my in tern sh ip . The one recommendation I would make to the Urban

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• P lanning Department i s th a t they encourage stu d en ts to take courses in government and p o l i t i c s . I'm sure our agency was chained to p o l i t i c s much more than most, but as fa r as I'm concerned, the need to understand p o l i t i c s and i t s r e la t io n sh ip to p lanning cannot be s tr e sse d too much.

In lo o k in g back, I f e e l th a t most o f my work assignm ents were ed u ca tio n a lly b e n e f ic ia l in variou s ways, some more so than o th e r s . Although i t i s d i f f i c u l t to p in p o in t s p e c if ic b e n e f it s obtained from my in te rn sh ip , the o v e r a ll experience was very w orthw hile.

Recommendation s

In the United S ta te s th ere e x i s t s a h ierarchy among o f f i c e workers. The most c le a r m a n ifesta tio n o f t h is i s the paycheck. That i s , the g rea ter o n e 's paycheck, the h igher o n e 's ascribed s ta tu s . I have come to the con clu sion th a t the grant I rece ived from the S ta te o f West V irg in ia should have supplemented my pay as an in te r n , not compose 50/5 o f what I was payed. I th ink i t should be kept in mind th a t though the in tern la ck s exp erien ce , he i s alm ost always a c o lle g e graduate and should be trea ted as such. My paycheck ascribed a s ta tu s to me th a t did not r e f l e c t my background and I experienced d i f f i c u l t y in r e la t io n s w ith other s t a f f members freq u en tly on account o f t h i s . I was able to accept the in tern sh ip at the pay sc a le I was o ffered on ly because I l iv e d w ith my parents "those e ig h t months.I f an agency w ishes to draw in te rn s from o u tsid e areas the pay sc a le w i l l have to be in creased as i t i s very doubtfu l th a t fu tu re a p p lica n ts w i l l have fam ily l iv in g in th e area as I d id . My op in ion s are not arb itrary or unreasonable.In the summer o f 1969, ASPO found the average sa la ry fo r in te r n s to be 8450 per month which i s more than I made in 1974 (Harder, 1969). I t appears th a t we are a lon g way from se e in g p lann ing in te r n s trea ted in a manner s im ila r to

th e way we tr e a t m edical in tern s or banking management

t r a in e e s .

(35)Appendices

Appendix A ..............................In d ica tio n o f attendance at the(p» 36) Interagency Environmental Coordin

a tio n Workshop held in C harleston .

Appendix B .............................. In d ica tio n o f Commission m eeting(p* 33) attendance.

Appendix C .............................. Sample from assignm ent sh eet required(p« 39) by the West V irg in ia O ffic e o f Federal

State Relations.

Appendix D ............. Sample from charts done for Regional(p. 40) Housing Seminar.

Appendix E .............................. Front cover d ra ft o f the R egional(p . 41) Comprehensive Development P lan pamphlet.

Appendix A (36)

REGISTRATIONINTERAGENCY ENVIliONMENTAI, COORDINATION

WORKSHOP

NAME ORGANIZATION

1. Troxell 0. Mason2. W. A. Hartig3. C. E. Penn4. E. R. Patton5. Guy W. Mick6. Burke L, Thompson7. Jerry Elliott8. Joe Currico9. M. L. Thomas10. Steven Morrison11. Bill Lynch12. George Walker13. Rebecca Martin14. Charles Patton15. Don Walker16. Phil Sheets17. Rodney L. Welder18. A. L. Fleshman, Jr,19. Glenn F. Fowlkes20. Stanley C. Goard21. Gary D. Lanham22. Randy Curtis23. Mel Brenan24. William Wood25. John K. Lett26. R. E. Titus27. Garland Steele28. John O'Leary29. Richard Hanlon30. Charles W. Hinkle

DOH - Roadside Development DivisionDOH - Chief Engineer, DesignDOH - Right of Way DivisionDOH - Right of Way DivisionDOH - Right of Way DivisionDOH - M.C.S.5T. DivisionDOH - Right of Way DivisionDOH - Right of Way DivisionDOH - Roadside DevelopmentDOH - Right of Way DivisionDOH - Roadside DevelopmentDOH Construction DivisionDOH - Construction DivisionDOH - Project § Environmental Review Div.DOH - Project 5 Environmental Review Div.DOH - Project 8 Environmental Review Div.DOH - Advance PlanningDOH - Project $ Environmental Review Div.DOH - Project § Environmental Review Div.DOH - Roadside DevelopmentDOH - Right of Way DivisionDOH - Advance Planning DivisionDOH - Advance Planning DivisionDOH - Advance Planning DivisionDOH - Advance Planning DivisionDOH - Project § Environmental Review Div.DOH - M.C.S.5T. DivisionDOH - M.C.S.8T. DivisionDOH - M.C.S.^T. DivisionDOH - M.C.S4T. Division

1. John Webster FHWA - West Virginia2. Alex Almeida FHWA - West Virginia3. Bob Anderson FHWA - West Virginia4. George Sparks FHWA - West Virginia5. Steve Weaver FHWA - West Virginia6. Larry W. Smith FHWA - West Virginia7. H. Wang FHWA - West Virginia8. C. Klemstine FHWA - West Virginia

(continued on next page)

Appendix A (37)

NAME ORitvxirAnox

9. N. Smith10. Gale Macklay11. John MeBee12. W. li. Gibson13. R. J. Robinson14. F. E. Cinfel15. W. A. Prosser16. J. R. Anderson17. Ronald S. Dattilo18. Don Ashcroft19. Jon Venura20. Rex Wells21. Don Deuterman22. R. B. Welton23. John Kruegler24. E. B. Nobles25. Ronald M. Hill26. John R. Stevens27. David A. Kelley28. W. S. Lattin29. Jesse R. Chaves30. Ray Bergeron31. Robert Belichick32. E. J. Foreman33. Monte Darden34. M. L. Corry35. Gary Larsen

FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - West Virginia FHWA - Baltimore, Maryland FHWA - Baltimore, Maryland FHWA - Baltimore, Maryland FHWA - Baltimore, Maryland FHWA - Baltimore, Maryland FHWA - Washington, D.C. FHWA - Washington, D. C. FHWA - Baltimore, Maryland

1. Paul Nicherson2. James E. Harding3. Marlene Herslunan4. G. 0. Fortney5. William W. Bradford6. Tom Hankins7. Hi Burgess8. Betty Broyles9. Ralph Cipriani10. Gary Dufour11. Bill Santonas

Department of InteriorWest Virginia Antiquities CommissionWest Virginia Antiquities CommissionWest Virginia Health DepartmentWest Virginia Health DepartmentWest Virginia College of Graduate StudiesRegion I - BeckleyWest Virginia Geological SurveyBHJ-BHJTSBHJ-BHJTSDNR - Morgantown

Appendix B (38)

MINUTES OF THE JOINT MEETING OF THE

BROOKE-HANCOCK-JEFFERSON METROPOLITAN PLANNING COMMISSIONAND THE

BHJ TRANSPORTATION STUDY POLICY COMMITTEESTEUBENVILLE. COUNCIL CHAMBERS WEDNESDAY, MARCH 10, 1974

PART I - BHJTS * **- ATTENDANCE

Members:Arthur Bartell, Chairman Matt Cavanaugh John Cipoletti Rolland Crabtree Frank Januszkiewicz Walter Durkin Ralph P. Jones Kenneth Joy

**Dave Kindsvatter Robert Manypenny

**Lyman C. MastStanley J. Paprocki, Jr.

**Edison E. Roush Michael Sinicropi Robert Smogor Ray Stoaks

**Fred VanKirk Henry A. WilsonOthers:

Mayor, Wintersville, Ohio Councilman, Wintersville Wellsburg, W. Va.Commissioner, Brooke CountyJefferson County Planning CommissionWellsburg Planning CommissionWeirton CouncilMayor, New CumberlandSteubenville Planning CommissionNew Cumberland CouncilODOT, District 11Steubenville CouncilFHWA, ColumbusHancock Planning CommissionSteubenville Planning CommissionCommissioner, Brooke CountyW. Va. DOHBrooke County Commissioner

Ed EllisJohn H. McClainAncher Madison

ODOT, ColumbusODOT, District 11City Engineer, Steubenville

Mrs. R. Cipriani Pat DeFrancis Elizabeth Gurgacz Vince Gurrera Celeste Michaels Pam Shuman Robert Wise

FollansbeeWheeling Intelligencer SteubenvilleWeirton Mayor's Advisory Comm. WSTV - RadioW.Va. House of Delegates Steubenville

Staff:Robert W. Wirgau, AIP Executive Director Lowery K. Bailey, Region XI Project Director Ralph Cirpiani, Intern Gary DuFour, Community Coordinator Mary Ellen Groves, Secretary**Member BHJTS Policy Committee

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OVERCROWDING 1960-1970 Appendix D ( 40 )

I960 1970

No. U n i t s No. U n i t s% o f Al lw i t h 1.01 % o f AM w i t h 1.01

o r more Occup l ed o r more O c cu p 1edCounty Per sons /Room Un I t s Pe r son s /Roo m Un 1 t s

Brooke 973 12. 1 71 1 7. 8Hancock 1206 10 .8 1003 8 . 3J e f f e r s o n 3057 10.5 2213 7 . 4

Region 5236 10.8 3927

VO

OccupIed U n i t s w i t h

morePe r sons /Room

J e f f Reg I onBrooke Han cock

I960 1970

S o u r c e : I960 and 1970 Census o f P o p u l a t i o n and Hous ing

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(42)

R eferences

• American E le c tr ic Power, Annual R eport, 1967.

Brooke-H ancock-Jefferson M etropolitan Planning Commission,Annual R eport« 1973.

Harder, Jacquelyn K ., "Student In tern sh ip s ," ASPO Planning Advisory S erv ice Report No. 246, May, 1969.

Lewis, P ierce "Small Town in P en n sy lv a n ia ," Annals o f the A sso c ia tio n o f American Geographers. V ol. 62, No. 2 (June, 1972) pp. 323-351.

"Merchants Consider Mall C ounteraction," W heeling I n te l l ig e n c e r , January 31, 1974.

Minutes o f the J o in t Meeting o f 3KJ and BHJTS P o lic y Committee. March 10, 1974.

P helps Dodge, "Phelps Dodge S a lu tes P it tsb u r g h ," Fortune Magaz in e , September, 1974, p . 77.

R o th b la tt , Donald, Regional Planning: The AppalachianE xp erien ce, L exington, M ass., Heath Lexington Books, 1971.

U .S. Dept, o f Commerce, County and C ity Data Book, 1972.

U .S. Environmental P ro tec tio n Agency, I n te r s ta te S u rv e illa n ce P ro jec t: Measurement o f Air P o llu tio n Using S ta t ic M onitors. May, 1971.

W heeling-P ittsburgh S te e l C orporation, Annual R eport, 1968.