TABLE OF CONTENTS

61 Action Programs. . . . . . . . . . . . . . . . . . . . . . .. 1

Education

"2

Human Resources

,

. . . . . . .. 8

General Government

,

12

Natural Environment

,

18

Protection of Persons and Property. , . ,

22

Economic Development.

26

Transportation .. , ,

,

30

61 ACTION PROGRAMS
Citizens lose confidence in government when they aren't given a voice in determining how their tax dollars are used This is why my Administration launched the "Goals for Georgia" program as one of its first projects. We wanted to hear from the people.
Thousands of Georgians in every section of the State responded with several hundred recommendations and suggestions about programs they thought should be undertaken.
No government can implement such a broad program of activity in one Administration. But we feel Georgia has made a good start on the "Goals" program.
This "Blueprint for Action" brochure summarizes 61 programs now underway in State Governmentmost of them based on "Goals" recommendations. These are programs designed to meet the problems of the 1970s and provide our citizens with the services they need to live a fuller and more satisfying life.
When I took office, I promised there would be no general statewide tax increase during my term in office I have kept that promise, and will continue to keep it.
The programs discussed herein involve many millions of dollars We are able to accomplish them through major economies in government and because of a vibrant economy that is setting new records
We are proud of this record, and believe you will be too.
~tfz / ~~my Carter Governor of Georgia

EDUCATION

EDUCATION
GOAL: Expand the Minimum Foundation Program for Education (MFPE). PROBLEM: The MFPE falls short of providing a quality education for all children. Many needed prog rams are not included in the MFPE and must be financed locally. Of $231 million in local funds spent in 1971, $153 million was spent on "local enrichment" programs However, many school systems are not financially able to provide a significant amount of local enrichment money. ACTION. The local government study has recommended expansion of the MFPE to include 16 new
programs or major extensions of existing programs.
Gov. Carter asked the 1973 General Assembly to provide $303 million in 1973-74 to finance the first phase of this expansion Included are lower pupilteacher ratios and special education teachers, among other programs.
GOAL: Provide more equal funding in school systems with less taxable property per student than the statewide average. PROBLEM: A one mill property tax levied statewide on the 40 percent adjusted tax digest would yield approximately $16 per student. Yet, each mill in 128 of the State's 188 school systems yields less than $16. Additional State support is needed in poorer systems that are levying the maximum local tax to bring them up to the same quality education as in the 60 richer systems.
ACTION: Gov. Carter, acting on a local government
study recommendation, asked the 1973 General Assembly to appropriate $15 million to correct this problem. For every mill levied for "enrichment" funds beyond the MFPE required local effort, the State will make up the difference between what one mill earns locally and what one mill would produce if levied statewide.
3

GOAL: Establish the required local effort for the MFPE at a set percentage of the property tax digest.
PROBLEM Required local." effort, the amount of matching local funds required under the MFPE, is now frozen at $78.6 million a year.
ACTION: The 1973 General Assembly was asked
to approve a recommendation of the local govern-
ment study to establish the required local effort as a set percentage of the 100 percent equalized, adjusted property tax digest for school tax purposes. To yield the present total of $78.5 million required local effort, the levy would have to be about 4.65 mills on a 40 percent assessment.
GOAL: Launch an Early Childhood Development program.
PROBLEM: The State provides very little support for educating preschool age children. Yet.. studies show these are a child's most important leaming years,
ACTION An early childhood development program approved by the 1972 General Assembly has not been fully implemented A new program has been submitted to the 1973 General Assembly as a recommendation of the local government study. The proposed 1973-74 budget includes $6 7 million to fund half-day programs for all mentally, physically and emotionally handicapped five-year-olds Other phases are scheduled each year through 1978. The new budget also includes $11,5 million to construct and renovate classrooms for this program.
GOAL: Establish a testing program in the 4th, 8th and 11 th grades of school to determine students' achievements and help them achieve to their maximum potential.
PROBLEM: Georgia schools have not had a statewide testing program to provide information concerning academic achievements by individual students, schools and school systems and to determine the areas of education that need improvement,
ACTION: A $500,000 statewide testing program was initiated in 1971 in grades 4, 8 and 12, Some 258,000 students were tested, The State Board of Education changed the grades in 1972 to the 4th, 8th and 11th, The tests are scheduled annually if funds are appropriated.
4

GOAL: Provide remedial reading in every elementary school to guarantee as nearly as possible that no child is promoted into the fourth grade without being able to read and write. PROBLEM: The 1971 statewide testing program revealed that Georgia fourth graders:are on
inthe average four months behind the national average basic skills such as reading, vocabulary and math. Extreme differences among students in different parts of the State also were revealed. Until two years ago, Georgia had no remedial instruction
ACTION.' The General Assembly has passed a law and appropriated $3.2 million in grants to local
school systems to hire additional personnel to help classroom teachers provide intensive instruction to slower students, especially those in grades 4 to 6. An increase to $4 million is proposed for 1973-74. The remedial reading program is now reaching 200,000 students-approaching the number who need this service.
GOAL: Expand "shared services" among school systems. PROBLEM: Many individual schools. and school systems are too small to provide all needed educational programs. These can be provided by two or more school systems pooling their resources. ACTION.' The General Assembly in 1972 passed a law that expanded "shared services" programs and created Cooperative Educational Service Agencies (CESAs) to provide these services Each CESA is governed by a Board of Control composed of representatives from each participating local school system The State Board establishes rules and determines that the CESAs follow State law Gov Carter proposed $2.4 million to fund this program in 1973-74.
5

GOAL: Expand the State's system of comprehensive vocational high schools to provide a school within commuting distance of all Georgians. PROBLEM: Georgi9,'s educational program historically has been oriented towards preparing stu- . dents for c01Ie~e. Yet., approximately 75 percent of Georgia's high school graduates do not attend college. And many who go to college drop out within two years. Half of Georgia's students end their education with no marketable skills. ACTION: To solve this problem, Georgia in recent fears has been establishing comprehensive high
schools, which provide academic or vocational education or a combination of the two.' Gov. Carter
pledged to fund 40 new comprehensive schools during his term-10 each year-so that one will be within commuting distance of every Georgian. Twenty have already been funded, 10 are in the proposed 1973-74 budget, and 10 more are planned the following year Other actions are being taken by school officials to emphasize career development . Gov. Carter says this should be a top priority for educators.
GOAL: Establish a program of student financial aid so that any graduate capable of doing post-high school work, either in a college or vocational school, will not be denied this opportunity because of Ia..ck of financial support. PROBLEM: Although Georgia's program of grants and loans to post-secondary students will exceed $20 million in State and federal funds during the 1973 fiscal year, there are still many poor Georgians unable to obtain post-high school education. ACTION. The Governor's Committee on Student Financial Aid recommended that State appropriations of $5.2 million in 1972-73 be increased by an additional $40.2 million for loans and grants to help financially needy students by 1974-75. Gov. Carter proposed $12 million next year in State funds, with an additional $1 0 million coming from Revenue Sharing funds, to start financing the proposal
6

GOAL: Provide State tuition grants for eligible students attending private colleges. PROBLEM: Parents whose children attend private colleges have long complained of unfair treatment They must pay high tuition fees at private colleges for their children's education and still pay,taxes that finance most of the expenses at public colleges and universities.
ACTION. Voters approved a constitutionaJ.amendment authorizing grants up to $400 per year for
each student attending private colleges to help pay their expenses This is still a smaller cost to taxpayers than if the students attended an institution within the University System of Georgia.
GOAL: Establish a comprehensive student intern program. PROBLEM: Georgia's college students have had very little opportunity to tearn first-hand how government operates and to help solve the many chronic problems faced by Georgia people. ACTION. Gov. Carter in his first year in office launched the Georgia Intern Program to allow college students to work in State Government during the summer The pilot program proved so successful that it is now operated on a year-round basis, offering both academic credit as well as an educational stipend Some 240 students from more than 30 colleges were represented in the 1972 summer group. They worked on various programs in more than 40 cities and towns.
7

HUMAN RESOURCES
GOAL: Develop a program to guarantee a minimum level of health services to all Georgians. PROBLEM: No State agency now has the direct responsibility for insuring that a minimum r:Cl.nge of health services is available to all citizens. ACTION. The local government study recommended that the State Department of Human Resources be given the responsibility for guaranteeing a minimum level of health services to all Georgians, with a longrange goal of making every able-bodied Georgian self-sufficient Such a program is now under development.
GOAL: Decrease the welfare rolls. PROBLEM: The number of Georgians on welfare rolls has continued to accelerate at a sharp growth rate in recent years at a cost of millions of dollars. ACTION.' In November, 1972 the number of Georgians on welfare decreased for the first time in more than five years A steady decline in the growth rate had been experienced for several months. Although some increases are expected to occur for a while, the State's goal is a steady decline in total welfare recipients Several factors caused the November drop-family planning clinics to reduce the birth rate, work incentive programs, operation of more child care centers to aI/ow mothers to work, Georgia's improved economic conditions, and others.
GOAL: Allow the State to take over all health costs now borne by counties. PROBLEM: The amount of health services now provided Georgians varies from county to county. Per capita county expenditures range from 23 cents to $5.23 in general health, resulting in a maldistribution of services ACTION. Gov Carter, upon the recommendation of the local government study, proposed the appropriation of $17.5 million in 1973-74 for the State to take over all health services now provided by counties in the areas of physical health, mental health and mental retardation to equalize services
9

GOAL: Combine into one department all State functions dealing with the physical, mental and social well-being of Georgia citizens. PROBLEM: Four different State agencies and several different programs have for many years served the_social and health needs of Georgians, creating many frustrations for citizens seeking help. ACTION: Through Reorganization, the State created the State Department of Human Resources and gave it responsibility for all health, welfare and vocational rehabilitation services.
GOAL: Establish an effective drug control program. PROBLEM: The drug problem has been escalating in Georgia in recent years. In 1971 it was estimated Georgia had 12,000 heroin addicts. At least 50 percent of crime in Metropolitan Atlanta was related to drug addiction.
ACTION: Gov. Carter in 1971 launched a drug treat-
ment and rehabilitation program that has become nationally recognized. Some 40 drug programs and treatment centers now operate throughout Georgia. Drug-related crime in Metropolitan Atlanta showed a big drop during the program's first 15 months.
GOAL: Launch a State program against alcoholism. PROBLEM: There are an estimated 200,000 alcoholics in Georgia, with at least 50 percent of highway deaths related to alcohol. ACTION: Gov. Carter launched an "ail-out" attack on alcoholism in late 1972, with many different programs underway Sixteen community-based alcoholism programs are now operating throughout the
State, with 18 more planned or proposed. Also, a new open door policy has been initiated at regional hospitals that will provide instant help to alcoholics on an around the clock basis. An alcoholic can get help by presenting himself at one of the centers.
GOAL: Expand services to the mentally retarded, mentally ill, aging, and otherwise afflicted citizens. PROBLEM: Georgia has been serving these disabled people for many years, but has not been able to help all of them.
10

ACTION: Using federal and State funds, the State has almost quadrupled spending to help these afflicted Georgians during the past two years. Also, the 1972 General Assembly passed a law requiring local Health Departments to provide a wide variety of community retardation services by 1978 and authorized 100 percent State funding of the nonfederal share of the cost of such programs.
GOAL: Provide an effective statewide family planning program.
PROBLEM: The State for several years has operated afamilyplanning program with some 70,000 Georgia women actively participating by late 1972. Yet, this was only a little more than one-third of the women needing help.
ACTION: The State has expanded its efforts during the past year to provide family planning to more women. Total growth in 1972 doubled the growth in 1971.
GOAL: Initiate an effective venereal disease control program.
PROBLEM: Georgia has long been number one among all States in the number of venereal disease cases and the number has been rising in recent years, with syphilis cases increasing 5.3 percent in 1971-72.
ACTION: A major new emphasis in treating venereal disease was launched in 1972 with Georgia's first gonorrhea screening program. A side benefit has been the first reduction in syphilis cases in several years.
GOAL: Reduce the hospitalization of mental patients.
PROBLEM: Georgia for many years operated one of the nation's largest mental hospitals at Milledgeville, with little emphasis on returning the patients to their homes as soon as possible.
ACTION' Central State Hospital at Milledgeville is being reorganized and will provide regional mental health treatment for the Middle Georgia area, among several programs. Three other regional hospitals are already in operation, with four others planned. Regionalizing mental health facilities will make it possible to keep patients near their homes and reduce their in-hospital time.
11

,/
/' GENERAL //" GOVERNMENT
4 I:

GENERAL GOVERNMENT
GOAL: Reduce property taxes.
PROBLEM: Property taxes increased 179 percent between 1957 and 1969, have continued to rise about 10 percent since then, and now total about $550 million. This steady tax increase is blamed for many Georgians losing confidence in local governments.
ACTION: Gov. Carter, acting on a local government study recommendation, proposed a $50 mil-
lion reduction in property taxes in 1973. Home-
owners would be allowed a State income tax credit
totaling 20 percent of the property taxes paid, not
to exceed $75. Renters would be allowed a credit
of two percent of their gross rent, with the same $75 limit. Georgians who don't pay income taxes would be eligible for State refunds. In addition, it is proposed that the State assume $63.8 million in services now borne by local governments, freeing additional funds that could be used to reduce property taxes

GOAL: Equalize property tax assessments to insure an equitable system for all taxpayers.

PROBLEM: Georgia's property tax laws prior to 1972

were antiquated, and did not provide for uniform

administration.



ACTION: The 1972 General Assembly passed a
series of 10 property tax reform measures aimed especially at equalizing methods of assessments. State Revenue Commissioner John Blackmon said the laws would bring about "the most comprehensive and far-reaching changes in the ad valorem tax field in Georgia in the past 100 years." Funds are proposed in the 1973-74 budget to implement those laws not already in effect.

GOAL: Provide additional sources of income for cities and counties.
PROBLEM: Many city and county officials say they lack adequate sources of revenue to provide services since the State and federal governments have claimed the major tax sources except property.
ACTION' The 1973 General Assembly was asked to
Approve a local government study recommendation to authorize a local option one percent income
tax for local governments, providing they use 40 percent of the receipts to reduce taxes. Other sources of new revenue totaling $15.5 mi//ion are also recommended.
13

GOAL: Reorganize the Executive Branch of State Government.
PROBLEM: The number of State agencies mushroomed 1,600 percent between 1931 and 1971 while State population Climbed only 50 pe-rcent. The result was_ a fragmented government with many duplicating functions.
ACTION: The 1972 General Assembly approved a complete reorganization of the Executive Branch, reducing the number of State agencies from 300 to 22 major State operating agencies. Some 300 management improvement recommendations also were made, most of them in various stages of implementation. The result has been better services at a major savings in tax dollars.
GOAL: Strengthen local governments and provide better coordination between all governments.
PROBLEM: The role of local governments has continued to expand over the years with citizens demanding more and more services. Cities and counties are operating with basically the same tools they had many decades ago. Their capabilities to provide services have not kept pace with demands.
ACTION: The State and Local Government Study was undertaken in 1972 to correct this problem. Its objectives were to recommend a program to strengthen local government's ability and capacity
to deliver services to citizens, recommend a fair and
equitable tax structure, and improve the coordination between State, city and county governments. Some 70 recommendations were made that cover
a wide range of local activities. Some 35 bills were
introduced during the 1973 legislative session to implement those recommendations requiring changes in law. Others will be implemented by action of local officials and State agencies. Gov. Carter called the study "the most meaningful action taken during my Administration. " Some $138 million has been included in the proposed 1973-74 State budget to implement the recommendations.
GOAL: Eliminate the necessity of any overall increase in taxes through economies in government.
PROBLEM: Taxes are continuing to rise on all levels of government. Taxpayers are calling for more economy to prevent further increases.
14

ACTION Gov. Carter pledged there would be no general statewide increase in taxes during his Administration. He still promises to keep this pledge. This is being made possible because of savings from new budgeting methods, reorganization, more rapid
and efficient tax collections, and a surge in Georgia's
economy that is producing a substantial increase in anticipated new funds
----
GOAL: Develop a contract buying program that emphasizes large volume purchases to save tax dollars.
PROBLEM More than $100 million or almost eight percent of the State's budget is spent for the goods and services necessary to operate State Government. Yet, 98 percent of all State purchases have been made in the past by individual requisitionsthe most expensive method of procurement.
ACTION Through Reorganization, the State em-
barked on a program to purchase in large volumes.
Within three years, the State expects to be saving
more than $9 million a year through new purchasing
procedures. Actual documented savings in the first year of the program indicate this goal is realistic
GOAL: Develop a computer controlled "cash flow" system to allow greater investment earnings of idle dollars, and charge the. current market rate of interest on invested State funds.
PROBLEM The State in the past has invested its idle funds on time deposits and received the Federal Reserve discount rate in interest. A lot of guesswork has been used in determining how much idle funds could be invested.
ACTION Two actions were taken during the past year that will increase investment earnings by about $4.5 million during fiscal year 1973. One was to develop a computer controlled "cash flow" system that would be more precise about financial needs to meet obligations, thus allowing more State funds to be invested. Also, banks were aI/owed to bid on the amount of interest to be paid on State funds deposited with them. This had the effect of charging current market interest rates. These usually average about one percent higher than the Federal Reserve discount rate. In all, the State anticipates investment earnings of $12 to $13 million in fiscal year 1973.
15

GOAL: Create a State Office of Housing.
PROBLEM: The 1971 Housing Goal Report of Georgia estimated that half of Georgia citizens live in substandard conditions There are not enough sound houses vacant (oilly~one percent), and new houses are linancially out of reach to three out of five Georgians. Despite these acute problems, there has never been one single agency in State Government responsible for finding solutions.
ACTION. Gov Carter has created a State Office of
Housing in the Department of Human Resources. The State will not provide loans for purchasing
homes, but will conduct a wide range of activities
aimed at solving Georgia's critical housing shortage
GOAL: Develop financial management standards for cities and counties.
PROBLEM: A recent study indicated that, with few exceptions, financial budgeting, reporting, auditing and control procedures in local governments are inadequate or nonexistent
ACTION. The local government study recommended that the General Assembly authorize the Department of Administrative Services to establish and maintain minimum budgeting, financial reporting and auditing standards for local governments.
GOAL: Create a Governor's Council on Human Relations and initiate a program to bring more black citizens into State employment and the National Guard.
PROBLEM: Even though many human relations councils exist throughout the State, there has been no central program to provide statewide leadership in this important area. Also, when Gov. Carter took office, only seven to eight percent of all State employees were black.
ACTION.' The Governor's Council on Human Relations was created in October, 1971 to provide
leadership that will create a broad understanding
between all races in Georgia and to work in troubled areas to reduce crisis and tension. This was the first such State Council created in the Deep South. One phase of the Council's responsibility is to attract more blacks into State employment Within one year, black State employees doubled. Black membership in the National Guard tripled Various programs are underway to help blacks seek employment.
16

GOAL: Establish a program of zero-base budgeting.

PROBLEM. Before Gov Carter took office, Georgia's

State Government appropriated funds on a basis of

each department submitting budget requests based

on additional funds desired. No effort was made

for departments to justify programs or personnel

already budgeted

.

ACTION Gov Carter implemented immediately after taking office a "zero-base budgeting" procedure. This involves each department submitting budgets justifying the resources committed to each program and activity

GOAL: Formulate a State Development Plan.
PROBLEM: The State of Georgia did not designate a central planning agency until 1967. No statewide development plan had been formulated coordinating efforts of all the agencies prior to Reorganization.
ACTION' The Planning Division of the new Office of Planning and Budget, operating under legislative direction, completed in late 1972 the first annual State Development Plan. This report assesses the conditions existing in Georgia in the areas of Human, Economic and Physical Development, discusses goals and accomplishments of State programs, and presents executive policy which has been formulated to guide future development activities of State agencies.

17

NATURAL ENVIRONMENT
GOAL: Preserve Georgia's many valuable environmental, recreational and historical areas. PROBLEM: Georgia has dozens of irreplaceable natural areas that should be preserved but are endangered by growth. A few crisis actions have saved some areas, but the State has never budgeted general funds for thispurpose. ACTION: Gov. Carter in 1972 created the Georgia Heritage Trust Advisory Commission to develop a long-range plan to preserve vital elements of Georgia's heritage. The proposed 1973-74 State budget includes $17 million to embark on a 10-year program to acquire priority areas, with 29 top priority sites identified Other recent actions to preserve natural areas include:
- Completion of plans to acquire the five-mile, 400-acre stretch along the Chattahoochee River north of Atlanta valued at some $4 million to create
the Palisades Nature Park that will be within a 30
minute drive of 1,250,000 people "No other city in the Nation will have anything like this, "Gov. Carter said. This acquisition was accomplished at no cost to the State.
-Gov. Carter and conservationists are moving to protect the entire Chattahoochee River from Buford
Dam to Peachtree Creek, a 48-mile section bounded
by nature woodlands, with some of the best trout fishing waters in the State.
-An all-out battle to protect the scenic and ecologically valuable marshes of Glynn County An agreement has already been reached to protect the marshes surrounding Terry Creek near Brunswick.
-Plans are complete to purchase in 1973 the 6,900 acre Lewis Island near the mouth of the Alta-
maha River Lewis Island is a wildlife refuge and con-
tains what may be the largest stand of virgin cypress remaining in Georgia.
- The 867-acre Sweetwater Creek in Douglas County and Panola Mountain in DeKalb County were purchased in 1972.
19

GOAL: Combine into one department all State agencies, programs and functions dealing with natural resources. PROBLEM Some 36 budgeted State agen_cies previouslyshared res'ponsibiTIty for protecting the State's natural resol::Jrces of air, land, water, forests and wildlife, and making resources available for recreation A fragmentation of effort resulted. ACTION.' The State Department of Natural Resources was created through Reorganization to
provide a single concentrated approach in this area.
GOAL: Strengthen Georgia's laws as they relate to air, land and water quality. PROBLEM: Georgia has been active in cleaning up its environment, but was hampered by inadequate laws prior to 1972. ACTION.' The 1972 General Assembly passed eight laws that provided new direction and legal powers to clean up the State's environment. The bills covered automobile emission, Coastal Marshlands, air pollution, solid waste management, streams, surface mining and other environmental areas. Over 500 million gallons of waste-untreated two years ago -are now meeting purification standards. This is one-half of the total effluent discharge in the State.
GOAL: Acquire hunting and fishing rights on managed private lands and lakes. PROBLEM: In 1971 the State had only 22 wildlife management areas open that were leased from private land owners and industries. These covered only 480,000 acres, a small portion of the total acreage that could be available for Georgia sportsmen. ACTION: Using funds from an increase in hunting and fishing license fees in 1971, the State has increased the number of wildlife management areas under lease to 38, covering some 1,400,000 acres, with 15 more areas planned in 1973-74. The goal is 2,500,000 acres of privately owned land open to sportsmen by 1978.
20

GOAL: Improve fishing quality in the warm water streams of Georgia. PROBLEM: Although many Georgians have ready access to fishing only in warm water streams, the State had done little before 1971 to improve fishing in these streams except for building boating. ramps on accessible streams.
ACTION Using new license fee funds, a major pro-
gram was launched to improve fishing conditions in the State's 3,000 miles of major warm water streams The program includes more research, Georgia's first stream management, more ramps (80 now, 150 more planned) and the State's first program to make more streams accessible and to clear the streams already accessible. The goal is to open 175 miles of streams each year
GOAL: Provide more open spaces for Georgia citizens to enjoy and improve recreation programs for cities and counties. PROBLEM Georgia faces a crisis in open spaces. A 1971 inventory revealed Georgia has only 4.3 acres of open space per 1,000 residents; national minimum standards are 20 acres A total of 122 of 159 counties and 512 of 596 cities provide little or no recreation. ACTION A 1O-part program to upgrade the development of recreational facilities"and operation of programs throughout Georgia was recommended by the local government study The program includes more State financing and technical assistance
GOAL: Initiate State grants-in-aid programs to help local governments finance solid waste, water and sewer projects. PROBLEM Georgia's cities and counties need millions of dollars in additional funds to finance capital construction in the areas of water and sewer and solid waste. Water and sewer needs are estimated at $476 million for the period 1972-76
ACTION Gov. Carter, acting on a recommendation
of the local government study, asked the 1973 General Assembly to approve two new annual grant programs- $5 million for water and sewer projects, $2 million for solid waste construction.
21

PROTECTION / OF PERSONS
AND PROPERTY
22

PROTECTION OF PERSONS AND PROPERTY
GOAL: Provide adequate consumer protection.
PROBLEM Because of inadequate laws, many unscrupulous operators are bilking the public through deceptive merchandising practices, usuring and consumer lending transactions.
ACTION: Legislation was introduced in the 1973 General Assembly to outlaw deceptive business schemes such as bait and switch advertising, misleading endorsements, false or vague warranty statements and referral sales plans, unfair methods of competition "such as price fixing, boycotts by suppliers, and similar trade restraints. The Attorney General would be given tough enforcement powers. Separate legislation also was proposed to protect citizens from fraudulent intra-state security sales
GOAL: Modernize Georgia's judicial system.
PROBLEM: Georgia courts are operating under laws that have been in existence for many years. Gov. Carter appointed a commission composed of membersof the bench and bar to study the problem.
ACTION. The commission recommended 21 new laws to speed up court procedures and prevent long delays in bringing cases to trial. Eight laws were passed by the 1972 General Assembly. The remaining 13 bills were introduced at the 1973 session.
GOAL: Improve Georgia prison conditions with major emphasis on rehabilitation.
PROBLEM: Georgia prisons historically have served as incarceration centers. Although many improvements have been made since the "chain gain" and "rock quarry" days, until recently there has not been a total commitment to rehabilitation of prisoners so they can return to society as normal citizens. Georgia had a recidivism rate of 71 percent -one of the nation's highest
ACTION. The State Department of Offender Rehabilitation is developing innovative approaches aimed at breaking the crime cycle These include regionalized institutions. expanded probation and parole services, behavioral management systems aimed at reducing the problem of criminal behavior, and expanded rehabilitation programs. The recidivism rate already is declining and the prison population has been reduced by 700
23

GOAL: Upgrade the Division of Investigation (001). PROBLEM: Crime is increasing throughout Georgia at a faster rate than the population. To cope with this problem and provide greater assistance to local officers, Gov. Carter pleaged to upgrade the 001. ACTION: The 001 was created through Reorganization, succeeding the old Georgia Bureau of Investigation, and given responsibility over all State criminal investigation functions. Salaries were upgraded. More training is required. The 001 was placed directly under the new Board of Public Safety headed by the Governor The 1973 General Assembly was asked to grant the 001 the right to conduct investigations statewide and have the arrest powers now enjoyed by revenue agents, game and fish rangers, and prison guards.
GOAL: Upgrade the quality of local law enforcement. PROBLEM: Georgia law enforcement agencies are not subject to uniform standards Officers are paid as low as $2,000 per year and average under $5,000, frequently with few or no fringe benefits. Only about two-thirds of 6,951 local officers have had the 114hour required basic training-the second lowest level nationally. ACTION.' The 1973 General Assembly was asked to approve recommendations by the local government study to upgrade law enforcement in Georgia. The highlights are minimum standards for all agencies, higher training standards applicable to part-time and special peace officers as well as full-time
officers, and a minimum salary for certified officers
aided by State supplements
GOAL: Establish a system to remove politics as a factor in selecting State judges. PROBLEM: State appeals and Superior Court judges historically have been selected on a political basis with judicial ability often a secondary factor.
ACTION. Gov. Carter created a Commission on
Judicial Selection to help make appellate judicial appointments. This process guarantees the appointment of highly qualified judges.
24

GOAL: Create a non-partisan commiSSion with power to investigate complaints about courts and recommend discipline of unfit judges. PROBLEM: There is no practical procedure now for removal or discipline of senile or unfit judges The Legislature may impeach judges, but this !3-ctiOn is limited
ACTION Voters in 1972 approved a constitutional
amendment creating the Judicial Qualification Commission, with powers to remove, discipline or involuntarily retire judges.
GOAL: Launch legal action against sex shops and theaters specializing in hard-core pornography. PROBLEM: The State Literature Commission has existed since 1953, but has no enforcement powers and has become only a complaint department and investigative body.
ACTION Gov Carter has formed a new six-member
commission to make recommendations for launching fresh legal action to more fully protect minors from exposure to obscene and pornographic materials, and to protect the rights of all citizens who do not want to be exposed to these materials.
GOAL: Coordinate a statewide war against regional and organized crime. PROBLEM: Most types of crime are on the increase in Georgia with organized crime trying to spread its tentacles into the State. ACTION: Gov. Carter has committed the State to
a war on crime that will "put fear of the law into drug
pushers, car-theft rings, gambling czars, and illegal dealers throughout this State." This is being done by providing for greater cooperation among law enforcement agencies across county lines, providing greater resources to local sheriff's offices from the State level, and upgrading the State's investigative arm, the 001.
25

ECONOMIC DEVELOPMENT
GOAL: Expand the State's economy until the average Georgian earns the national average in per capita income so that his quality of life is as good or better than the average American.
PROBLEM: Georgia has trailed the nation in per capita income for many decades. Although the difference has been steadily decreasing, each Georgian in 1971 earned $3,599, only 86.7 percent of the national average income. Since Georgians living in the Piedmont Region are now earning nearly as much as the average American , most other Geor- '. gians lag much farther behind in ar]nual per capita income. ACTION Although not a new goal, the State has increased efforts in the past two years to narrow this income gap as quickly as possible. Georgia in 1972 enjoyed its second most prosperous year in
industrial growth-despite a nationwide economic
setback Construction was up 23 percent The Governor's Manpower Planning Council was established in 1971 to assess the State's manpower needs and develop a program of educating and providing manpower to increase the level and number of employees in Georgia-actions that will increase Georgia's per capita income.
GOAL: Improve Georgia's position in international business and trade. PROBLEM: With trade growing rapidly between the United States and foreign countries, Georgia has not moved with enough diligence to attract a bigger share of the market. Georgia is in an excellent position to move forward with two excellent Atlantic harbors at Savannah and Brunswick and international traffic now utilizing the Atlanta Hartsfield International Airport.
ACTION: Gov. Carter toured five South American countries on a two-week trade mission in April, 1972. He has taken an active role in persuading several countries to locate consul general or trade offices in Atlanta. Also, he asked the 1973 General Assembly to appropriate funds to establish international trade representatives in Brussels and Japan and part-time representatives in South America.
27

GOAL: Build a $35 million Georgia World Congress Center in Atlanta to attract international meetings and trade shows, and to promote Georg ia's products for world markets and G..eorgiC! as a location for national and international b-usiness investments and a plaGe to visit.
PROBLEM: Construction of the center would give Georgia a showcase that no other state has in the area of international trade, boosting the State's opportunities in the growing competition for trade with other countries.
ACTION: A site has been selected for the center near the Omni Coliseum in downtown Atlanta. The 1973 General Assembly was asked to appropriate funds for construction of the facility The Center would generate about $160 million annually in new business and net the State some $5 million each year in State sales taxes, enough to more than pay for its construction and operation
GOAL: Create a central State agency to provide information and technical assistance in order to help local governments achieve a balanced and orderly pattern of growth and development.
PROBLEM: There are more than 40 State agencies, divisions of agencies or outside organizations that provide community development services to cities and counties. Their responsibilities are so diverse and spread out that the average local official does not know where to go for help
ACTION In accordance with Reorganization, the Department of Industry and Trade was given the responsibility in addition to its previous responsibilities to coordinate all assistance to local governments. The Department of Industry and Trade by constitutional amendment was renamed the Department of Community Development A Division of Community Affairs was transferred to the department from the Bureau of State Planning and Community Affairs to provide this service. Its mission is further detailed by the local government study Employees of this division will be thoroughly familiar with every agency that can help local govern-
ments achieve a balanced and orderly pattern of
growth. City and county officials requiring assistance should contact this department for guidance as to where to obtain the specific help desired.
28

GOAL: Make Georgia a mecca for the motion picture industry. PROBLEM A few movies have been filmed on site in Georgia, but the State has not been in the mainstream of the film industry With more and more movies being filmed on location rather than. Hollywood, the time is right to push Georgia as a film center. ACTION: A special 15 member committee has been organized to work with the Georgia Department of Community Development to promote site locations
for filming and producing films for a variety of pur-
poses, including movies and television. The Public Relations Section of the Department is providing production coordination and obtaining services statewide in order to promote Georgia for on-site production of movies and television films. Gov. Carter in late 1972 met in Los Angeles with officials who make location decisions. Following the meeting, he indicated that several companies have already agreed to film several movies in Georgia, while more negotiations are underway.
29

TRANSPORTATION

GOAL: Create a State Department of Transportation with responsibility for total transportation planning.

PROBLEM: The State has had an effective highway

building program but until 1972 was not involved in

mass transit planning and does not have a statewide

airport plan.

.

ACTION: A State Department or Transportation (DOT] was created through Reorganization with responsibility for planning in the areas of highways, mass transit and airports. The local government study recommended development within the department of an airport planning staff, increased help to local governments in developing airport master plans, establishment of State standards and licensing procedures to insure safe operation of public airports, and more State funds for airport improvements

GOAL: Facilitate the completion of Georgia's Interstate highway program with bond funds.
PROBLEM: Interstate highways were to have been finished by 1972 but a shortage of federal funds has delayed completion until 1978
ACTION: Gov. Carter asked the 1973 General
Assembly to approve a $60 million bond program
to speed up construction of Interstate highways with
a target date for completion in 1976-two years
earlier than now planned. Federal funds would be used to repay the bonds.

GOAL: Build a system of pay-as-you-go tollways to facilitate the development of expressways in key areas of Georgia.
PROBLEM: With the Interstate program now six years behind schedUle, federal funds are not available for non-Interstate expressways needed now.
ACTION: The 1972 General Assembly created the State Tollway Authority and authorized construction of toll highways. Under study are four toll highways in Metropolitan Atlanta-the North Atlanta Freeway
to be started in fiscal year 1974-and a West Georgia
Tollway which would stretch from Chattanooga to Tallahassee and be the Georgia link in an expressway from the Midwest to Florida.

31

GOAL' Prepare a 20-year comprehensive statewide transportation plan and connections thereto that includes all modes of transportation. PROBLEM: The-DOT has been operating on less than a five-year formal construction program. It has plan-ned beyond that period but has not prepared a formal document except for those cities of 50,000 population and over and for some cities under that size. ACTION' The General Assembly ordered imple-
mented a Reorganization proposal for the State to prepare a 20-year comprehensive transportation
plan for cities over 50,000 population to include highways, airports, and mass transit. The 1973 General Assembly was asked to expand the plan to areas other than cities over 50,000 Legislation also requires plans for connecting these cities, thus pro-
viding a network of transportation systems through-
out the State.
GOAL: Reimburse urban areas for maintenance performed on State roads within city limits. PROBLEM The State has had the responsibility for maintaining all State-aid roads except for some 414 miles of State-aid roads in 13 cities. ACTION. The General Assembly authorized the DOT to reimburse all cities for maintenance on State-aid
roads at a cost of about $1 million annually
GOAL: Provide more State help to local governments in highway planning.
PROBLEM: Very few cities and counties have professional planners and engineers available on a continuing basis. The result has been a lack of adequate planning for road and street projects. ACTION The local government study recommended
a series of actions by the State to help cities and
counties, including establishment of an Office of Local Government Assistance within the DOT and more technical assistance. These recommendations are being implemented.
32

The preparation of this document was financed in part through a grant from the Coastal Plains Regional Commission and the US. Department of Commerce