A state in action : Georgia 1971-1975

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HERITAGE TRUST SITES

ABOUT THE COVER:
The Chattahoochee River State Park (left) north of Atlanta presently includes two acquisitions of land with the first Heritage Trust funds in FY 1974 and one acquisition prior to Heritage Trust through a combination of federal, State and local government funds and private land donations. Future Heritage Trust purchases to enlarge the park are planned. The stretch of the Chattahoochee running through the park is one of the most unspoiled, scenic and ecologically valuable rivers remaining in any metropolitan area. The Jarrell Plantation (center) in Jones County was purchased with FY 1974 funds. It is a seven-acre farm complex complete with houses, outbuildings and farm equipment dating from 1850 to 1910. Banks Lake (right) is one section of the 21 ,OOO-acre Grand Bay/Banks Lake Area in Lanier and Lowndes Counties that is earmarked for future acquisition. The area includes 8,000 acres presently under lease for wildlife management use. The area combines many types of terrain -- hardwood swamp, shallow open water, heavily vegetated water areas, and natural forested high ground.

A PUBLICATION OF THE OFFICE OF GOVERNOR, STATE OF GEORGIA ..... JIMMY CARTER~ GOVERNOR
A ~TATE IN ACTION
Georqia. lQ71 -lQ75

Table of Contents

EXPANDING STATE SERVICES
INTELLECTUAL DEVELOPMENT Adequate Education Pre-School Education Special Education Vocational Education Public Libraries Intern Program
HUMAN DEVELOPMENT Mental Retardation Drug Treatment Alcoholism . Killers and Cripplers Family Planning . Sickle Cell Anemia . Warm Springs Fluoridation Housing
NATURAL ENVIRONMENT Heritage Trust. Game and Fish Pollution .

4

ECONOMIC DEVELOPMENT.

49

Economic Growth

50

7

International Trade

52

8

Movie Production

54

10

12

GENERAL GOVERNMENT

57

14

Property Tax Reform

58

16

Property Tax Relief.

60

18

Cash Management

62

Equal Employment .

64

21

Budgeting and Planning

66

22

24

PROTECTION OF PERSONS AND PROPERTY

69

26

Judicial Reform

70

28

Offender Rehabilitation

72

30

G. B. I. Upgrading

74

32

Drug Law Enforcement

76

34

Civil Disorders Unit.

78

36

38

TRANSPORTATION

81

Transportation.

82

41

42

REORGAN IZATION

85

44

Structure.

86

46

Economy and Efficiency .

88

Expanding State Services

In all of Georgia's history, there has never been another four-year period that paralleled the last four years in improvement of State services.
The upsurge in quality of service was made possible because of a vigorous, expanding economy. There has been no general Statewide tax increase during my Administration -- a campaign promise which has been kept.
And I believe that all the needs of the State during the next , four years can be met without a tax increase because this Administration is leaving the State in excellent financial condition. During the last four years, this Administration -- with the cooperation of the General Assembly -- has done more than merely allocate new dollars.
J_ Through Reorganization, we implemented a series of actions that trimmed the fat from governmental activities, making possible more services for every State dollar.
One of my first actions after becoming Governor was to launch the "Goals for Georgia" program. We asked the people of Georgia to tell us the programs they wanted their State Government to initiate.
The accomplishments outlined in this publication reflect the State's efforts to respond to the wishes of the people.
We have made tremendous strides in all areas of government.
Salaries for all employees have been increased to match higher work and training standards.
Education has received almost $300 million in new dollars to upgrade its services to our students, with special attention being given to progress in vocational education and special education for the handicapped and gifted.
4

In addition, the State launched its first efforts on behalf of pre-school education. The Adequate Education Law was passed that will herald a new day in educating every youngster who attends Georgia public schools after July 1,1975.
The first State funds for construction of public libraries have been provided.
We started the Heritage Trust program, the first longrange, State-funded program in Georgia's history to preserve our valuable natural and cultural resources.
In the area of Human Development, we have launched or expanded programs to help the alcoholic and the drug user.
In addition, programs in family planning and mental retardation have been upgraded. The first State efforts to help victims of sickle cell anemia and to provide housing for Georgians were launched.
Industrial development has been unprecedented. New and expanded industry in 1973, for instance, was 25% higher than in any previous year.
We have made Georgia a major location for motion pictures, with the likelihood that by the end of 1974 more movies will have been made in Georgia in a two-year span than in all of the previous years combined.
Among actions to foster international trade, I have made two trips abroad and we have established full-time offices in Brussels and Tokyo. The results are impressive.
In the area of law enforcement, the Georgia Bureau of Investigation has been upgraded to a level comparable with some of the better law enforcement agencies in the nation.
A new program of using young undercover agents has resulted in a successful attack against drug pushers, with a conviction rate almost perfect.
For property tax owners, we have provided a broad program of reforms to provide more equalized assessments. And the State has taken over the financing of several costly local

programs to ease the property tax burden. There has been a comprehensive program of judicial reform. Georgia's battle against pollution has gained ground with a
solid slate of accomplishments during the period. Comprehensive planning and new techniques have brought
improved service in highway construction with greatly reduced numbers of employees.
The initial move towards fluoridating all public water systems in Georgia has been launched.
We have put our idle State dollars to work through a new system of "cash flow" management that earned $28.2 million in FY 1974 -- a 344 percent increase in only four years.
In the area of Game and Fish, 11 programs have been launched or expanded that have resulted in more hunting and fishing for some 1.2 million Georgians who now enjoy these outdoor pursuits.
In addition to promoting economy and efficiency, Reorganization reduced the number of State agencies, boards, commis- sions, etc. from about 300 to 22 operating agencies. This has brought government closer to the people and created a structure that the people can understand.
These -- and many more -- accomplishments make me proud that I was able to serve the people of Georgia as Governor during this period of unparalleled growth.
These accomplishments were made possible because of the joint efforts of many dedicated Georgians.
The General Assembly provided leadership during this period in passing such timely legislation as Reorganization, judicial reform, pollution control, the Adequate Education Law and many others.
The State's department heads and employees have worked hard to improve programs to provide better services for our people.

Many thousands of Georgians have unselfishly dedicated their time and effort in serving on State boards and commissions and on many special study teams that have helped to provide the impetus for this period of prosperity and progress.
Georgia citizens helped to inspire our progress by providing the type of public support necessary to make this program of .action possible.
To all of these people and the many other Georgians who have been a part of this great thrust forward for our State . during the last four years, I want to express my thanks.
This publication is designed to highlight some of the many accomplishments.
It is not a detailed portrait, but a capsule glimpse at some of the programs implemented during my Administration.
I feel confident that we are leaving the State to the next Administration in the best shape possible.
There are many unmet needs and this publication discusses those too.
Georgia has a bright future. In the next few years, we expect progress that will outstrip what we have been able to accomplish.
We think a foundation has been built that will make this possible.
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GOVERNOR OF GEORGIA

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Adeguate Education

Action
In 1949, Georgia passed a Minimum Foundation Program for Education in an effort to guarantee a minimum level of education throughout the State with increased State funding.
In 1964, a new Minimum Foundation Program for Education was passed that upgraded the total educational program through even larger increases in State spending.
Despite these milestones, Georgians are questioning the adequacy of Georgia's educational programs. A new Statewide testing program, pledged by Governor Carter in his campaign and implemented by the General Assembly in 1971 in the 4th, 8th and 11 th grades, has revealed that Georgia students are below the national average in learning achievements.
The high rate of high school dropouts continues to cause concern about the quality of education in Georgia.
Only in those relatively wealthy systems that can afford to pour large sums of local money into education is the educational achievement level of students close to the national average. In general, the larger systems have levied a considerably higher property tax rate than the smaller systems to upgrade the quality of education in their schools. But even if the smaller systems levied the same millage rate, they simply do not have the tax base to finance an adequate program.
The 1973 General Assembly ordered a complete reappraisal of educational needs in Georgia. A 27-member study committee of educators, legislators and interested Georgians, of which the Governor was a member, was created to recommend an Adequate Program for Education in Georgia.
The Committee recommended 147 actions to meet the future educational needs of Georgians.
8

Results
Acting on recommendations of the study committee, the 1974 General Assembly passed a new educational bill which, when fully implemented, will establish a truly adequate educational opportunity for every Georgia child regardless of where he lives and in which school he attends.
Some of the provisions are: -- Pre-school education for every child. -- Reduction of the pupil-teacher ratio in grades 4-7 from one teacher for every 28 children to one teacher for every 25 children to give more individual instruction. -- Substantial increase in vocational education teachers. -- Separation of maintenance and operation funds from sick leave, with increases for both. -- A plan to equalize the quality of education Statewide. This would be accomplished by providing more funds Statewide to the less wealthy systems. The cost is estimated at $60 million annually. -- More money for the purchase of media equipment (teaching aids) with State funds authorized for use in upkeep, repair and replacement of this equipment. -- Assessment of immediate and long range construction needs to place school construction on more of a priority basis and move the State towards assuming a greater share of financing construction. -- Large increase in support personnel, with a reduction from one per every 200 students to one per every 120 students to provide more effective personal and career counseling to students.

Unmet Needs

The Adequate Program for Education charts the direction

planned by the State to guarantee a better educational oppor-

tunity for all students beginning July 1, 1975.

.

It is estimated that the total cost of funding the Adequate

Education law is over $300 million above present levels. It .

will take many years to reach complete funding, but a sub-

stantial start should be made in the FY 1976 budget. Subse-

quent budgets should include increased funds as they are

available to fully implement the new law as soon as possible.

The Adequate Education law provided a study to deter-

mine compensatory education needs, but did not provide a

program to actually meet the needs. Examples are adults who

can't read and ghetto children who don't have the basic skills

to obtain an education. Such problems should be addressed

in future years.

Five additional reforms also are needed that the new law

did not cover:

-- Explicit safety and health standards for both public and

private schools.

-- Comprehensive curriculum program improvements.

-- Statewide health education program.

-- Statewide program to insure the equitability of capital

funds outlay.

-- A comprehensive Statewide in-service training program

for teachers and administrators.

9

Pre-5chool Education

Action
A high dropout rate has plagued Georgia schools for many years. Educators say the problem actually begins in the primary grades with unprepared and underdeveloped children.
Approximately one-third of all fourth graders and half of Georgia's eight graders are one year or more behind the national average in reading and math.
Pre-school education could help prevent this from happening. The value of pre-school education is reflected in the fact that most children have developed 50 percent of their mature intelligence by the time they have reached age four. Threequarters of adult reasoning ability is established by a child's eighth year. Thus, more than two-thirds of a child's total intellectual ability has been developed by the time he enters school.
In addition, there are thousands of handicapped children and children classified as perceptually or linguistically deficient who need pre-school education in order to help them cope with school work.
Despite these overwhelming facts, the State of Georgia, until FY 1973, did not allocate any funds for pre-school education.
The General Assembly passed an Early Childhood Development Law in 1972 which was incorporated into the Adequate Program for Education Law in 1974.

Results
State funds were provided in the 1972-73 school year to establish 44 pilot programs providing pre-school education to meet three needs -- diagnostic services for children ages 0-2, development programs for children ages 3-4, and educational programs for five-year-old educationally deprived children.
In the following year, funds were appropriated to finance a half day of pre-school education for Georgia's 8,000 five-yearold physically, mentally and emotionally handicapped children, who represent about nine percent of all five-year-olds in the State.
The new Adequate Education Law provides expansion of the program on the following priority basis:
-- Mentally, physically and emotionally handicapped, age 5. -- Perceptually and linguistically deficient, age 5. __ Perceptually and linguistically deficient, ages 3 and 4. -- Non-handicapped and non-deficient, age 5. -- Mentally, physically and emotionally handicapped, ages 3 and 4.

10

Unmet Needs
It is estimated that the total cost of implementing the preschool education program on a non-compulsory attendance, basis for all five-year-old children and for all deficient and handicapped children is more than $90 million a year.
Because of a tight budget for fiscal year 1975, the State appropriated only sufficient funds to continue the half-day program for five-year-old physically, mentally and emotionally handicapped children, and the 44 pilot programs.
A full pre-school educational program must be phased in over several years. This program should be a top priority and additional funding should be provided each year beginning in fiscal year 1976 until it is completely implemented.
When the program is totally in operation, Georgia will offer a comprehensive pre-school program for both its normal and exceptional children.
In the meantime, the Georgia Board of Human Resources has the authority and is encouraged to establish programs for children aged 3 and 4 until the State Board of Education is able to establish a program for these children on a Statewide basis.
11

~~ecial Education

Action
Georgia has many afflicted children who are handicapped in learning because of mental, physical or emotional problems. There are many gifted children who also need special instruction to meet their accelerated needs.
Special educational services for these children must be provided. The State has a responsibility to provide the type of instruction needed for each student as an individual.
In 1968, the General Assembly passed House Bill 453 which established a goal of a full operational program by 1976 to guarantee that every student receives an opportunity to learn up to the limit of his capabilities, regardless of the specialization necessary to provide it.
Every year since passage of the law, the General Assembly has appropriated funds to meet the goals set forth in House Bill 453, with an acceleration of funding levels since 1971.

Results
Within the past three years, the number of students served through the expanding special education program has more than doubled.
In FY 1971, there were 49,121 special education students in Georgia. As State funds increased each year, the number of students increased to 64,636 in FY 1972, 83,462 in FY 1973 and 113,906 in FY 1974.
At the same time, the number of State-funded special education teachers and support personnel increased from 1,925 in FY 1971 to 5,030 in FY 1975.
Transportation for special education students has been a problem since the program started. Until' 1971, there were no special vehicles provided for this purpose.
Since 1971, the State has provided funds for operation of a total of 340 minibuses to transport special students to classes.
Another important milestone in special education has been the funding since 1973 of 20 special centers for serving the severely emotionally disturbed children.
The General Assembly provided funds in FY 1973 to establish eight of these centers to serve 1,580 students. Eight more were approved for FY 1974, increasing the number of students served to 3,468.
Funds are provided in FY 1975 for four more centers and the General Assembly will be asked to fund four more in FY 1976 -- making a total of 24 needed to serve all students in this program.

12

NUMBER OF STUDENTS RECEIVING

SPECIAL EDUCATION

113,906

1971

1972

1973

1974

NUMBER OF SPECIAL EDUCATION PERSONNEL FUNDED

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5,030

Unmet Needs
Despite the tremendous progress made in the past three years, Georgia is behind schedule in meeting the special education goals established by the General Assembly.
The high cost of catching up is a problem because the State was so far behind in meeting the needs of these special students.
Another problem has been the inability to train the large numbers of new teachers needed to provide such specialized instruction. This has been compounded by the fact that some of the teaching specialties which fall under the category of special education are relatively new.
The State must overcome these problems and not slacken its efforts to meet this important educational need.

1971

1972

1973

1974

1975

13

Vocational Education

Action

Results

Historically, Georgia's educational program has been aimed at preparing students for college. Very little attention was given to a vocational education for high school students.
By the mid-1960's, this educational philosophy was beginning to change -- but very slowly.
Yet, approximately 75 percent of Georgia's high school graduates do not attend college. And many students who en-
ter college do not graduate. Thus, most students complete their entire educational cycle with no marketable skill.
To correct this problem, the State of Georgia started in 1965 to develop comprehensive high schools, combining both academic courses of study with separate vocational courses. These schools serve both students who desire to enter college and those who want to undertake a lifelong career immediately upon graduation from high school.
Despite the growing realization that vocational education was an important element of public education, the number of comprehensive high schools grew very slowly. By 1971, only 27 comprehensive high schools were in operation or under construction -- an average of less than four a year -- as com pared to an estimated total need of 250 such schools. All of these had been built with federal and local money.
Over the years the State had developed a good system of area vocational-technical schools. But there was little cooperation between these schools and the colleges and universities operated by the University System. Credits could not be transferred between these institutions.
This barrier is now falling, with junior colleges especially giving more emphasis to vocational education.

In 1971, State officials made a commitment to sharply upgrade the quality of vocational education in Georgia.
The first goal established was to provide a comprehensive high school within commuting distance of every Georgia student desiring such an educational opportunity.
The graph on the opposite page illustrates the dramatic progress made. Within only three years, the number of comprehensive high schools funded has more than tripled, increasing from 27 in 1971 to 95 in 1974. Of the 95 schools funded, 77 will be in operation by the fall of 1974 and will be providing a vocational educational opportunity for 58 percent of all high school students in Georgia. The remaining schools funded should be open within two years.
In fiscal years 1973 and 1974, the State provided $2 million each year to fund this program. And despite the tightest budget in over a decade, the General Assembly appropriated $3,450,000 in construction grants for comprehensive high schools for FY 1975.
Several recent actions have been taken to improve the State's 23 area vocational-technical schools. A $5 million appropriation in FY 1974 provided for expansion of facilities.
The State also has assumed the responsibility for maintaining and operating the schools at a cost of $2,800,000 since the schools attract students from a multi-county area.
The Brunswick and Dalton Junior Colleges have both established vocational-technical divisions and the 1974 General Assembly provided additional funds to expand these programs in FY 1975. In addition, a vocational-technical division will be started in the fall of 1974 at the Bainbridge Junior College.

14

NUMBER OF COMPREHENSIVE HIGH SCHOOLS FUNDED

95
65 66 67 68 69 70 71 72 73 74

Unmet Needs
Despite the fact that the number of comprehensive high schools funded has more than tripled since 1971, the State is far short of the projected need of 257 such schools.
A long-range program envisions the funding of 15 new schools each year with a goal of providing 257 comprehensive high schools by 1985. This funding level should be maintained.
To make sure that comprehensive high schools are located to serve Georgia students to the maximum degree, a complete needs assessment is called for on a Statewide basis to determine proper priorities for construction and renovation and to establish long-range goals.
Career exploration and pre-vocational courses should be made available to all seventh and eighth graders. Career awareness units should be adopted for all elementary schools. Career guidance must be improved.
The Georgia Postsecondary Education Commission, which was appointed in the spring of 1974, is charged with the responsibility for developing a comprehensive Statewide plan that would make available to all residents of the State an opportunity to obtain postsecondary education.
It is expected that this Commission will place equal emphasis on private and public vocational education and academic instruction and outline a plan whereby all Georgians will have access to tuition-free or low-tuition vocational and academic postsecondary education within reasonable distance.
15

Public librarie.)
Action
Library construction almost came to a halt in Georgia in 1972.
Federal funds had dwindled from $378,000 in FY 1971 to $211,000 in FY 1972 and then were cut off completely.
The State was providing funds for library operation but not for construction of new or expanded facilities. And local spending for this purpose was not meeting needs because of higher priority expenditures for other programs.
Today more money than ever is being spent on library improvements. When federal funds stopped, the State moved in with even larger financing because of the growing use of libraries by both students and adults.
In both FY 1973 and FY 1974, the State appropriated $1 million for library construction and increased this amount to $1,725,000 for FY 1975.
In addition, the new Adequate Program for Education Act authorizes a rise in per capita expenditure for library services from 30 to 35 cents.

Results
State funds have helped to finance the construction of 14 new libraries and major additions to six existing libraries.
The $1,725,000 appropriation for FY 1975 will fund 10 to 15 additional projects.
State spending on library operations also has zoomed. The salary and travel expenditure for the public library staffs has increased from $1.3 million in FY 1971 to $2.4 million in FY 1975.
Expenditures for services and materials has increased from $1.3 million to $1.6 million during the same period.
Regionalization has placed 151 counties into 36 regional systems which can more effectively serve the needs in the area. Eight county systems still exist in areas where the population is large enough to support a separate system.

16

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Unmet Needs
While progress is being made, library construction in Georgia is not catching up with needs.
Thirty counties do not have a library. Fifty libraries are located in buildings with other operations. Separate facilities are needed. A total of 148 library buildings are inadequate and obsolete and should be replaced. To meet these needs and bring all library buildings up to American Library Association standards, it is estimated that 2,736,000 square feet of new library facilities should be constructed in Georgia. Based on construction costs of $25 per square foot, this would involve a building program of $68,400,000. A special new library building also is needed by 1977 to house the State Library for the Blind and Physically Handicapped. State library construction funds require a one-to-one match of local funds. The result is that the wealthier communities are receiving a large proportion of State funds because they can raise the matching funds. As a general rule, these communities already have adequate or near adequate library resources. A system should be worked out so that State library construction funds can be used where the greatest needs are.
17

Intern Program
Action
In an effort to involve college students in government and to provide them an off-campus educational experience in a working environment, the Georgia Intern Program was launched in 1971.
The program was started with State agency and federal funds. The 1972 General Assembly made the program permanent with a regular appropriation.
College students participating in the program are provided an opportunity to become actively involved on a full-time basis with specific projects defined by public agencies.
Students receive an educational stipend of $600 per quarter and in most cases are awarded academic credit for the knowledge and skills acquired while in the program.

Results
Within three years, Georgia's intern program has grown to be the largest Statewide program of its type in the country and has become a model for many other states in establishing their own programs.
More than 1,000 students have served as interns since the summer of 1971, with all four-year institutions within the University System and most private universities and colleges participating in the program on a regular basis.
The Board of Regents in 1972 adopted a policy of awarding up to 15 hours of academic credit for one quarter of internship by a student. The Georgia University System was the first in the nation to authorize system-wide procedures for awarding credit to interns. Students from all academic majors are eligible to participate.
Over 175 State, local, multi-county and private non-profit agencies have requested and received interns.
Of the first 200 interns in the program who responded to a follow-up questionnaire, 54 percent of those not still in school are working in public agencies. Another 22 percent are employed in the field of education.
Interns have come from 75 universities and colleges. While most are from in-State institutions, a few have come from other institutions around the nation.
Priority is given in this order: Students enrolled in Georgia universities and colleges, Georgians attending out-of-State institutions, and out-of-State students.

18

Annual Participation in Georgia Intern Program


Unmet Needs
The number of students interested in the intern program is growing. Opportunities or funds are needed to provide a placement for every student desiring to intern. Also needed is a greater involvement of students in community projects on a part-time or volunteer basis.
Several State agencies are interested in interns from vocational-technical schools, but these schools do not yet participate in the program. Procedures for involvement should be explored.
Internships for graduate students writing their thesis or dissertation should be developed.
Faculty internships also would broaden the scope of the program by providing agencies with technical skills and by providing faculty new sources of materials for research and teaching.

FY 1972

1973

1974

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mental Retardation

Action
During the 1960's it became increasingly clear that institutional care benefitted only a small percentage of Georgia's mentally retarded. Searching for an alternative, the State turned to the development of mental retardation services at the community level. This not only provided help for more retarded Georgians at less cost, but kept them within their home environment most of the time.
Action by the State began slowly, however, consisting primarily of grants to privately operated day care centers. These grants totaled only $26,000 in FY 1967, serving slightly over 800 individuals.
It was not until 1972 that a full commitment was made to the community care concept. That year the General Assembly passed the Community Services Act for the Mentally Retarded. A total of $2.5 million was appropriated for the expansion of community training centers and group homes.
These training centers and group homes serve all aged Georgians.

Results
The number of community training centers in operation has increased from 52 in 1970 to 124 in June, 1974.
Over the same period of time, the number of individuals served in these centers increased from about 1,200 to 5,574.
The Department of Human Resources had entered into contracts with the centers as of June, 1974 for a total of 6,416 individuals to be served. These will be gradually added to the program as community training centers can handle the additional workload.
By 1975, it is anticipated that 130 to 135 centers will be in operation.
Group homes, a therapeutic innovation where the mentally retarded can live near normal lives as a "family," had increased in number to 12 by the spring of 1974 and were serving about 70 individuals.
Instead of investing money available in new buildings to institutionalize mentally retarded Georgians away from their families, the State is spending its money in providing new hopes, dreams and lives for these afflicted citizens.

22

MENTAL RETARDATION
5,574
NUMBER OF INDIVIDUALS SERVED BY COMMUNITY TRAINING CENTERS

FY 1970

1971

1972

1973

1974

NUMBER OF COMMUNITY TRAINING
CENTERS IN OPERATION 124

Unmet Needs
While impressive advances have been made in caring for the mentally retarded, present efforts meet less than half the need. It is estimated there are 13,000 mentally retarded Georgians of all ages who need community-based services.
There are still 4,500 Georgians who should be placed in community training centers. To meet this need, the number of community training centers in operation should be increased to 150 -- 26 more than were in operation as of June, 1974.
Also, the capacity of centers already in operation should be increased.
There are an estimated 3,000 individuals who should be placed in group homes. To meet this need, a total of 300 group homes should be in operation as compared to only 12 today.
It will be essential to develop a variety of group homes to serve retardates of different ages, levels of functioning and physical disability.
A critical goal is the prevention of mental retardation. Experts estimate approximately 50 percent of all retardation could be prevented by adequate pre-natal and infant nutrition and health care.

FY 1970

1971

1972

1973

1974

23

Drug Treatment
Action
In June, 1971, Governor Jimmy Carter created the Georgia Narcotics Program by Executive Order to provide treatment and rehabilitation centers for hard drug addicts.
This represented the first attempt to deal with hard drug abuse by the State.
In 1972, the General Assembly passed the Drug Abuse Treatment and Education Act establishing a single State agency to plan and administer treatment for vital federal funding.
The 1974 General Assembly passed the Georgia Control Substance Act which completely revises the State's drug laws. This new law increases the penalties for possession or sale of hard drugs and brings Georgia law in line with federal drug statutes -- a provision expected to greatly facilitate law enforcement.

Results
In 1970, there were no community drug abuse clinics operating in Georgia. By 1973, there were 39 with others planned.
Of an estimated 5,000 heroin addicts in Georgia, some 3,500 have been served in these community drug abuse clinics.
Thirteen counseling centers are being developed throughout the State to help "soft drug" and "poly drug" abusers. Soft drugs are usually, but not always, prescription medicines. Poly drug abusers are those who abuse more than one soft drug.
Almost anyone with a drug problem can now get help. There is no longer any need to steal or traffic in drugs to feed an uncontrollable and addictive habit.

24

DRUG TREATMENT

NUMBER OF OUTPATIENTS TREATED IN COMMUNITY DRUG ABUSE CLINICS

3,500

1,039


2,600
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18

1970

1971

1972

1973

NUMBER OF COMMUNITY DRUG ABUSE CLINICS 39

Unmet Needs
Programs now exist to help hard drug addicts in Georgia. Most of these addicts are being treated. Those not being treated should be brought into the program.
There also is a critical need for even more counseling and involvement with users of soft drugs. Like addiction to hard narcotics, abuse of soft drugs can be damaging both physiologically and psychologically. Soft and poly drug abusers far outnumber hard drug addicts in Georgia.
Another need is to route certain drug related criminal cases into the community treatment centers where the chance for rehabilitation is greater than in Georgia's already overcrowded jails.

1970

1971

1972

1973

25

Alcoholi.)m

Action

Results

Alcoholism is a major health problem with an estimated 150,000 alcoholics in Georgia.
Georgia was one of the first states to recognize alcoholism as an illness and in 1951, the General Assembly created an official State program.
Two State supported facilities for alcoholism at Atlanta and Savannah were developed in the 1950's and several community alcoholism programs were developed in the 1960's.
Although these were good programs, their impact on the total problem of alcoholism was minimal. A program with real momentum was finally launched in 1971.
One of the first actions was authorization by the General Assembly for the admission of alcoholics to all State regional hospitals under their true diagnosis.
The Governor's Study Commission on Alcoholism followed up by recommending 11 major proposals for combatting alcoholism.
Significant among these proposals was the establishment of a policy allowing emergency treatment of alcoholics on a 24hour a day basis at all regional hospitals. Alcoholics can walk in from the street and receive treatment without pre-admission arrangements.
A State Plan for Alcohol Abuse also was developed, allowing the State to qualify for federal funds.
The 1974 General Assembly passed the Uniform Alcoholism Act which eliminates alcoholism and public drunkenness as criminal offenses. Instead of putting alcoholics in jail, where nothing is done to cure their problems, alcoholics now will be given treatment through the State's health services.
26

Emphasis now has shifted from institutional incarceration to community care. To support this new concept, the General Assembly has increased appropriations for community alcoholism programs from $200,000 in 1971 to approximately $1.8 million for FY 1975.
The number of community alcoholism clinics has increased from 15 in 1970 to 34 in early 1974, with the number of individuals served increasing from 3,000 to more than 10,000.
As a result of the new walk-in policy, admissions to regional hospitals have increased from an average of 40 per month to 150.
Of the 11 major proposals for combatting alcoholism recommended by the Governor's Study Commission, eight have been fully implemented. The remaining three proposals are in the process of implementation.

ALCOHOLISM
NUMBER OF OUTPATIENTS TREATED IN COMMUNITY ALCOHOLISM CLINICS

10,000

1970

1971

1972

1973

NUMBER OF COMMUNITY ALCOHOLISM CLINICS
34

Unmet Needs
Despite estimates that Georgia's alcoholism program will be helping 15,000 alcoholics by 1975, this is only 10 percent of the people who need help.
And for every alcoholic, at least four more people are affected, usually family members. This means that about 750,000 Georgians are directly touched by alcoholism in some way.
These numbers alone express a tremendous unmet need. Only about five percent of these alcoholics fit the popular "skid row" image. Emphasis is now being given to the development of a treatment and rehabilitation center for the chronic court offender alcoholic in the central downtown area of Atlanta. More such aid is needed in other metropolitan areas as well. An important need is greater emphasis on prevention of alcoholism. Especially important is the need to identify and help the "occupational alcoholic" before he loses his job. Related to this is the need to provide services and education to persons arrested for driving under the influence of alcohol.

1970

1971

1972

1973

27

Killer.) and Cri~~ler.)

Action
Only 13 of Georgia's 159 counties provide total maternal and infant care and 50 counties provide no care. In addition, the State does not have a standardized intensive infant care program.
It is estimated that 25,000 indigent women annually are not getting adequate pre-natal and post-natal services to insure that their babies are born healthy. As a result, Georgia is among the 10 states with the highest premature birth rates.
Some 2,500 infants are born in Georgia each year with congential eye defects that could result in loss of sight in one or both eyes without surgery. Also, approximately 260 infants are born in Georgia each year with a congenital defect of the gastrointestinal tract. Without highly specialized medical care, most will die. The State does not provide any help now for eye conditions and limited care only to 15 percent of the infants with G. I. anomalies.
It is estimated that some 800,000 Georgians suffer from high blood pressure, the majority of whom do not know they have the disease or are not being treated adequately.
There are an estimated 150,000 alcoholics in Georgia who need care. Of these, 6,000 are identified as desperately in need of rehabilitative treatment. Although an alcoholic program is underway, more help is needed.
Increased help for Georgians with these afflictions is being provided starting in FY 1975 through the" Killers and Cripplers" program funded by the 1974 General Assembly with an appropriation of $3,708,000.

Results
The biggest portion of the funds -- $2,023,000 -- is going to Maternal and Infant Care. Objectives of the program are to:
-- Coordinate health, nutrition, education and social services to improve the quality of family life.
-- Provide every mother and her unborn child access to adequate pre-natal care and safe hospital delivery.
-- Provide each new mother with a safe recovery and restoration of health and optimum opportunity for each infant to survive the critical first year of life, especially those at high risk.
Appropriations total $889,000 for the stroke prevention and screening program. Objectives the first year are the screening of at least 100,000 adults for high blood pressure, blood cholesterol and blood sugar and to reduce or eliminate these silent risk factors and others by referral to private physicians and "well adult" clinics.
The Crippled Children's Program is being expanded by $601,000. Objectives are to provide surgery, hospitalization, medical care and follow-up to save the eyes of infants born with surgically correctable eye defects, and to provide care for children from the most indigent families who are born with congenital defects of the gastrointestinal tract.
An appropriation of $195,000 will expand the staff of the Alcohol Treatment Unit at Southwestern State Hospital at Bainbridge to provide more assistance to Southwest Georgians who suffer from alcoholism.

28

Unmet Needs
Appropriations for the Killers and Cripplers Program in FY 1975 will meet only a small portion of the needs. For instance, the Department of Human Resources identified immediate needs of $7,138,000 for the maternal and infant care program alone.
The physical health of all Georgians is a necessary concern of State Government. To meet the needs of Georgians who don't have the financial ability to help themselves, the State should expand this program as rapidly as possible.
These are only four of the major killers and cripplers that afflict our people. As funds become available, the program should be expanded to include cancer, nutrition, dental care, chronic obstructive pulmonary disease, malnutrition (a possi~ ble factor in mental retardation), and accidents (the fourth major cause of death behind heart, cancer and stroke).
Emergency medical service also needs State attention. The Statewide Emergency Medical Service System should be expanded to include care and treatment of all high risk and emergency patients, and to assure prompt, professional emergency service to all areas of the State.
29

Family Planning
Action
The Georgia General Assembly in 1966 passed the Family Planning Services Act to insure that voluntary family planning services would be available to Georgia citizens.
While the family planning program grew some in the next few years, the big push forward came in 1971 with two major actions. First, the 1971 General Assembly made the first line-item appropriation of $250,000 for family planning. Second, G::.'vernor Carter created by Executive Order a Special Council on Family Planning to spearhead the implementation of a comprehensive voluntary family planning program throughout the State.
Another important action occurred in March, 1972 when the General Assembly amended the Georgia Medical Consent Act to enable females regardless of age or marital status to voluntarily receive medical treatment for prevention of pregnancy.

Results
Georgia is one of only a few states with family planning clinics operating in every county health department.
In 1971, there were 46,686 active patients participating in the State family planning program. The number of patients had increased to 69,374 by October, 1973 - - a 48 percent jump in two years.
Clinic locations have been expanded for convenience, and clinic hours have increased approximately 100 percent since 1971. During this time over 2,500 women were diagnosed and treated for non-malignant conditions which might have led to cancer. Over 200 cases of cervical cancer were diagnosed and treated.
The Governor's Special Council has created a Statewide 23 member Patient Advisory Committee to give advke on how the services can be improved to meet the needs of the patients more effectively.
Fertility rates for women age 15-44 decreased 11.9 percent between 1970 and 1972. The Statewide family planning program undoubtedly was a factor in this decrease.

30

FERTILITY RATES BASED ON LIVE BIRTHS PER 1,000 GEORGIA WOMEN AGES 15 - 44
94.31

1968

1969

1970

1971

1972

CUMULATIVE NUMBER OF WOMEN ADMITTED AND TOTAL NUMBER OF WOMEN WHO ARE ACTIVE
PARTICIPANTS GEORGIA'S STATEWIDE FAMILY PLANNING PROGRAM, JAN. 1969 - DEC. 1972

1IIIIIIIIIIillllllllili ~:~~; ~::~~;~~i~ICS

_

Women who are

Active Participants

173,155

78,819

119,153

Unmet Needs
Throughout Georgia there are an estimated 170,000 women between the normal childbearing ages of 15-44 who need family planning assistance because of their financial plight.
The efforts in recent years resulted in an enrollment of 69,374 active patients in Georgia's Statewide planning program as of October, 1973, the latest date for which statistics are available. (The adjacent graph does not include 1973 statistics because they are incomplete for that year.)
While achievements in recent years are praiseworthy, there are still 101,000 women who are not active in the program. These women should be active in the program because they cannot afford private medical care.
The State program is now operating at near clinic capacity. Increased funding for family planning will be needed to provide additional clinic hours and personnel to serve these women.

1969

1970

1971

1972

31

~ickle Cell Anemia

Action
Until 1971 the State was not involved in any program to provide assistance in screening victims of sickle cell anemia, a hereditary disease affecting mostly black citizens.
Through a grant from the Governor's Emergency Fund that year to the Sickle Cell Anemia Foundation of Georgia, the State financed the beginning of a sickle cell screening program.
In 1972 the General Assembly passed two pieces of legislation dealing with sickle cell anemia. One required that applicants for a marriage license be offered a test for the disease. The other stipulated that all newborn black infants be screened.
The General Assembly also appropriated funds for State labs to start screening blacks for the debilitating disease of the red cells, which often causes early death.

Results
Since the first screening was started in 1971, a total of 26,384 black Georgians have been screened by the Sickle Cell Foundation of Georgia through the first quarter of 1974. Although State funds started the prdgram, it is now financed through private funds.
The State's program, which was started in October, 1972, has resulted in the screening of 35,002 Georgians through May of 1974. Of the Georgians screened, 131 have been found to suffer from one of the Sickle diseases. This is four-tenths of one percent.
About 12 percent of the Georgians screened were found to have either sickle traits or C trait. Both conditions can be inherited by their children. In addition, about two percent of those tested have been found to have an abnormal hemoglobin that required further testing.
When an abnormality is detected testing of family members is encouraged. For this reason, these percentages are higher than the prevalence rate among all black Georgians.
The State's testing program has been growing in size rapidly. Only 112 screenings occurred the first month. More than 3,500 Georgians are now being tested each month.
The number of labs used in the testing program has increased from one in Atlanta to four across the State. Others are in Macon, Albany and Waycross.
The ultimate goals are to test all black adults who are interested in being tested and insure that all newborn black infants are tested.

32

STATE OF GEORGIA
Sickle Cell Anemia Screening Results

W~ SCREENINGS

I~ttm?)ttttl

SICKLE DISEASES

_ SICKLE TRAITS *

OTHER** ABNORMAL HEMOGLOBINS

.3..9.,.,..2..9..,9..

17,860

1973

1974 (Estimated based on screenings first five months)

*Possession of either sickle trait (AS) and C trait (AC) means that a person does not have the sickle disease but can pass it on to his children.
**Although these Georgians were not found to have the Sickle disease or traits, they had an abnormal hemoglobin that required further testing.

Unmet Needs
It is estimated that one out of every 500 black infants is born with either sickle cell anemia or an inter-action between sickle cell hemoglobin and another type of abnormal hemoglobin.
While State law requires that all newborn black infants be screened for the disease, authorities say this is not being done. An educational program is underway to insure the screening of all infants. This program should be intensified.
A majority of blacks have never been tested for sickle cell anemia. Every effort should be made to encourage participation in the screening program by every Georgian who has the potential to carry the disease.
Screening is especially important for young children because suffering can be kept to a minimum if sickle cell is detected at an early age.
Even after sickle cell is discovered through the screening process, the State does not provide medical treatment to the victims on a statewide basis.
A program of psychological counseling has been started, but it should be expanded to meet the full needs of all victims of the disease.
Since sickle cell can be a very expensive disease, more attention is needed in providing help for those afflicted.

33

Warm ~~ring~

Action

Results

The Warm Springs Foundation in Warm Springs once was the leading private, non-profit institution in the nation treating polio victims.
Covering some 960 acres, the facility has hospital facilities that can accommodate several hundred patients.
In addition, it has one of the best brace-making shops in the nation, fully equipped physical and occupational workshops and a therapy pool that is kept at a constant 94 degree temperature, plus dozens of supportive amenities and recreational facilities, including a nine hole golf course.
The growth of the facility ended, however, when the Salk vaccine finally conquered the dread disease of polio.
The Georgia Warm Springs Foundation, a separate corporation with inter-locking boards with the National Foundation/ March of Dimes, then switched the emphasis of the institution to treating neuromuscular disabilities.
But for a number of reasons the institution began to decline in the number of patients, creating financial deficits for several years in a row. In 1973, a low of 40 patients was reached.
Rather than see such a valuable facility close, several groups began negotiating for its purchase.
After the institution was offered to the State of Georgia as a gift, the State decided to accept the facility and expand its capabilities to treat the severely disabled.
Through a contract with the Foundation, the State began operating the facility on November 1, 1973 and took formal title on July 1,1974.

The goal of the State is to convert the institution into the most comprehensive rehabilitation center in the entire nation.
All services of the facility are being closely coordinated with the State's Warm Springs Rehabilitation Center, which was built adjacent to the facility on Foundation property 10 years ago. This is now the only institution in the country combining both a medical and vocational rehabilitation center.
Progress came fast after the State began operating the institution.
From a low of 40 patients on November 1, 1973, the patient load increased to an average of 86 during the month of May, 1974, with a peak of 100 at one period. As the staff can be enlarged, further patient increases are expected.
A wide range of neuromuscular disabilities are being treated at the institution. Patients include the paraplegics, those paralyzed in two limbs; the quadraplegics, those paralyzed in four limbs; amputees; stroke patients; and the severely arthritic. In addition, the institution treats severe burn cases.
The facility is not being operated as a custodial, nor a perpetual convalescent home. Its mission is to treat each patient in the quickest possible time so they can return to a life outside the institution.
Services of the institution are for use by a wide range of governmental programs such as crippled children, Medicaid, Medicare, Vocational Rehabilitation and others. It also is open to the private patient.

34

Unmet Needs
Besides a general program of restoring the institution to a role of providing services on a scale with the past, three specific goals have been established to make the institution the leader in its field.
Officials envision the institution as assuming a major educational role. Planned are short seminars in which professionals throughout the State who deal with the severely disabled -doctors, nurses, rehabilitation counselors, and social workers, etc. -- will visit the institution and learn first-hand how they can do a better job for their own patients.
Another important goal is to improve facilities at the institution to make it easier for families of patients to live there for whatever period of time is necessary to learn how to properly care for their loved ones when they return home after treatment. This would involve upgrading the quality of temporary living facilities and recreational opportunities for the visitors and patients.
Also planned is a program to connect the services provided each patient at the institution with the community services that will be provided him upon his return home. The better the local services provided the patient, the greater will be his capacity to avoid further treatment at the institution.
35

Fluoridation
Action
All dental and medical associations advocate fluoridation of water because fluorides have proven successful in preventing tooth cavities. Yet, as of 1973, only 73 of 576 public water systems in Georgia were fluoridating their water.
The problem was compounded by the fact that Georgia does not have enough dentists and doctors to provide needed health services for the State's 4,786,000 residents.
Responding to the problem, the 1973 General Assembly passed a Statewide law requiring that all public water systems must be fluoridated unless local voters specifically reject fluoridation in a referendum.
The law further required the State to pay for all fluoridation machinery and its installation. In addition, the State must pay for all fluorides used the first six months.
A total of $400,000 was appropriated to launch the program.

Results
The State Department of Natural Resources, which was placed in charge of the program through a ruling by the State Attorney General, established a priority system that offered the grants to the largest water systems initially because the $400,000 appropriation was only a small portion of the amount needed to implement the law.
The grant funds are allowing some 30 public water systems to fluoridate. Although this is only a small number of the systems not using fluorides, about 500,000 additional Georgians will be served. The larger the system, the less expense is involved in fluoridation on a per capita basis.
It was estimated that two million Georgians were using flouridated water before the 1973 law was passed.
As of mid-1974, voters in only two Georgia cities by referenda had rejected fluoridation of their water systems.

36

Unmet Needs
The 1974 General Assembly did not appropriate any funds to continue the fluoridation program for fiscal year 1975. A supplemental appropriation will be requested at the 1975 ses~ sion so that the program can continue.
After the initial appropriations are spent, some 473 systems serving about one million Georgians will still be without fluoridated water. Annual appropriations are necessary if the 1973 law is to be implemented. Total cost of fluoridating the remaining public water systems is estimated at $5.6 million.
Even after this goal is accomplished, officials estimate that 2,500,000 Georgians will still be drinking unfluoridated water since there are almost 4,500 private water systems in the State not covered by the law. Officials say the problem is that most of these water systems are so small that the cost of fluoridation is prohibitive.
37

Hou.)ing
Action
More and more Georgians are finding it difficult to afford adequate housing.
The median price for new houses in Georgia in mid-1973 was $31,000. Yet only one-fourth of families living in the State can afford a house of this price.
Even a $20,000 house - one-third less expensive than the median price new house - is beyond the reach of half of Georgia's families, as is an apartment which rents for as much as $200 per month, including utilities.
Increases in construction costs and land prices are helping to squeeze families out of the market for decent housing. But a significant cause also has been the steady climb in interest rates.
Since 1965, higher interest rates have increased monthly loan payments by some 25 percent, putting houses out of reach of many Georgians who otherwise could have afforded them.
Until 1972 the State had never had a single agency responsible for finding solutions to the housing problem. In September of that year, the State Office of Housing was created by Executive Order and placed within the State Department of Human Resources.
The 1974 General Assembly passed the Georgia Residential Finance Agency Act and it was signed into law.

Results
The purpose of the Georgia Residential Finance Agency (G.R.F.A.) is to make loans or purchase mortgages at about two percentage points below the prevailing market interest rate.
The Agency, in effect, will purchase loans at the market interest rate and make these loans available at a lower, affordable interest rate.
Operating funds for the Agency will be raised through the sale of tax-exempt bonds.
Under provisions of the new State law, the G. R. F. A. can assist families with incomes between $7,000 and $10,000. There are an estimated 175,000 Georgia families within this income bracket. Those assisted will have monthly loan payments approximately 15 percent lower than would be available without State assistance.
The overall effects of this Act will be to increase the supply of adequate, affordable housing, and to moderate the cycles of boom and bust in the housing industry.

38

Unmet Needs
While the G. R. F. A. represents a major step forward, it will be able to help only 5,000 families at anyone time.
Also, there are many families earning more than $7,500 who are being squeezed out of decent housing because of the inflationary costs and high interest rates, which are growing . worse rather than abating.
There are more than 478,200 families in Georgia who have incomes under $5,000 who cannot receive State help under this law.
The State Office of Housing seeks to develop and implement effective programs of housing assistance to help all Georgia families obtain the best housing available under existing governmental and private housing programs.
This Office provides technical assistance to local organizations, public and private, that are attempting to provide increased housing opportunities for low-and moderate-income people. These are the citizens of Georgia who are in the most dire need of housing assistance. Their plight, however, has worsened as a result of the January, 1973 moratorium on federally assisted housing programs.
Plainly, the problem of providing adequate housing for low and moderate income families must be solved in the near future.
39

~ c:
Q)
Ec:
.2e-:
-w

Heritage Tru.)t

Action

Results

Georgia's rapid growth in the last couple of decades has endangered many natural and cultural resources that are important because of environmental, recreational and historical reasons.
In recent years, individual Georgians and groups concerned about ecology have spearheaded drives to protect a few of these sites, such as part of the Palisades portion of the Chattahoochee River State Park north of Atlanta, the scenic and ecologically valuable marshes of Glynn County, Sweetwater Creek and Panola Mountain.
However, the State Government had never developed a long-range policy to meet this need nor appropriated any funds for this purpose.
In 1972, the 15-member Georgia Heritage T rust Advisory Commission was created by Governor Carter with a goal of devising a comprehensive land acquisition program to preserve the many irreplaceable natural and cultural areas threatened by the bulldozer.
After months of study, the Heritage Trust Commission recommended a 10-year acquisition program in an effort to preserve Georgia's heritage for future generations to enjoy.
42

Twenty-nine sites were identified as unique and most endangered, with immediate purchase recommended.
Responding to the crisis, the General Assembly appropriated $12.5 million to launch this ambitious program in FY 1974. Of this total, $10.5 million in direct funds was allocated for the Heritage Trust purchases and $2 million was earmarked for grants to local governments, mostly to buy property for a broad range of historic, educational or recreational purposes.
At the end of FY 1974,35 acquisitions at 19 different sites had been purchased or approved for purchase by the Board of Natural Resources, or received by gift. These acquisitions totaled 18,779.72 acres.
Among the sites purchased were: Chattahoochee River State Park -- 142 acres along the most unspoiled, scenic and ecologically valuable river remaining in any metropolitan area.
Wormsloe Plantation -- Depicts Georgia's colonial history.
Lewis Island -- Site of the only known stand of virgin cypress trees in Georgia and habitat for certain rare species of animals such as the limpkin and the swallowtailed kite.
Pickett's Mill -- One of the best preserved Civil War battle sites in Georgia.
Phillips Tract -- A 750 acre sand ridge featuring one of the largest growths of the Georgia Plume known in the country.
In FY 1975, the State appropriated slightly over $4 million to continue the program -- $3,475,000 in bond funds and $538,449.75 in direct capital outlay funds.

The 1,448 - acre Watson's Pond in Emanuel County, purchased with FY 1974 Heritage Trust funds.

Unmet Needs
The Heritage Trust Commission currently is operating under an Executive Order signed by Governor Jimmy Carter which will expire when he goes out of office on January, 1975.
Since the Heritage Trust program is only in its second year. of a projected 10-year acquisition period, the Commission's work is only beginning. To put the program on a permanent basis and insure the success of its long-range goals, Heritage Trust should become a regular activity of State Government authorized by legislation.
A bill to establish the Heritage Trust Advisory Commission as a statutory body passed the House of Representatives during the 1974 legislative session, but failed to come to the Senate floor for a vote. The bill will be introduced again at the 1975 session.
The original goal was to spend $10 million a year on purchasing sites identified as worthy of preservation. Due to a reduction in the overall budget for FY 1975 because of the energy crisis, it was possible to fund only about $4 million -- only 40 percent of the original target.
If future budgets permit, at least $10 million a year should be provided until the Heritage Trust program is completed. This is only a small fraction of what some other states are doing, but should keep bulldozers away from some of Georgia's most priceless natural rand cultural resources.
43

Game and Fi.)h

Action

Results

Hunting and fishing have long been favorite pastimes for Georgians desiring to escape temporarily from the frantic pace of society and return to the pastoral serenity of woodlands and streams.
An estimated 1.2 million Georgians enjoy hunting and fishing, with the total increasing about 10 percent each year.
Eleven major programs have been undertaken or expanded since 1971 to provide greater opportunities for these Georgians to enjoy their wildlife pursuits. The programs include:
-- Expansion of wildlife management areas. -- Using wild-trapped turkeys to stock depleted areas throughout the State. -- Leasing privately owned lakes for sport fishing by all Georgians. -- Restoration of warm water streams for use by boaters on fishing expeditions. -- Launching Georgia's first stream management program. -- Launching a hunter safety program. -- Providing a professional training program for all of Georgia's conservation rangers, the first time in the history of wildlife related law enforcement that this has been done. -- Using airplanes to eliminate night hunting of deer. -- Transporting deer to new areas, a program virtually completed. -- Initiating an oyster restoration research program to restore an ecological balance to coastal waters, a move that is greatly enhancing salt water sport fishing on the coast. -- Expanding the offshore artificial reef program.

The results of these programs have been manyfold. They include:
-- Addition of 12 new wildlife management areas, expanding land for this use 33 percent to 1.1 million acres.
-- The clearing of 100 miles of warm water streams for boats to navigate, with a future goal of 100 additional miles of clearing each year.
-- The leasing of five privately owned lakes totaling 450 acres for public fishing use in Webster, Elbert, Treutlen, Evans and Wayne Counties.
-- The expanded game management program has initiated a quail life history study which will result in great benefit to the landowner desiring to grow quail on private property.
-- A total of 144 wild turkey have been placed in 12 areas of the State that formerly did not have this game.
-- In only two years, over 500 private citizens have been certified as volunteer hunting safety instructors.
-- Over seven million fish are now being stocked annually in Georgia's waters. This is an increase of over 30 percent in the past year. After completion of the Chattahoochee Trout Hatchery at Buford Dam, stocked trout will increase 50 percent.
-- Two more <1rtificial reefs are being constructed off Georgia's coast near Cumberland and Wassaw Islands to expand the artificial area available to offshore sport fishermen by approxim.nely 30 percent.

44

Unmet Needs
Game and Fish officials say the large number of innovative new programs launched since 1971 provides most of the new direction needed to serve Georgia's hunters and fishermen.
The major need now is to expand on the programs to provide the maximum hunting and fishing opportunities for Georgians in all parts of the State.
The transportation of 400 deer during the past four years to areas which previously had no deer population has helped to increase the deer harvest from 30,000 to 45,000. This program is about finished. The same techniques should now be used to promote wild turkey habitats throughout the State -a program now in its infancy.
Except for acquisition of the Altamaha Waterfowl Area and 17,500 acres of Sapelo Island, no State funds were spent for acquiring wildlife management land from 1953 until the Heritage Trust program was launched in FY 1974.
It is projected that almost $3.7 million of the Heritage Trust appropriations for fiscal years 1974 and 1975 will be spent on acquisition of land to expand hunting and fishing resources.
Leasing land for wildlife management areas is an excellent step, but there is a danger of losing the land if it becomes more economically valuable for development. The State should accelerate its direct purchases of wildlife management areas as funds are available to assure perpetuity of the land for our children and grandchildren to enjoy as hunting and fishing preserves.
45

Pollution

Action
Georgia has vigorously pursued efforts to clean up its environment for more than a decade, but was handicapped until 1972 by a separation of responsibilities and inadequate laws.
The 1972 General Assembly took several actions that provided a strengthened organization, new direction and legal powers to launch an even more ambitious drive to improve the quality of the State's water, land and air.
The first action was to create through Reorganization the Environmental Protection Division (EPD) within the new State Department of Natural Resources. This Division was given total responsibility for all pollution control and environmental protection throughout the State.
In the area of water quality, the State may now collect damages for harm done to the State waters, and sewer taps may be restricted in areas where sewage systems are inadequate.
In addition, State water quality grants have been authorized for local water and sewage treatment facilities.
Georgia's air pollution laws were brought into compliance with federal legislation and the EPD Director is empowered to issue permits for the control of air pollution.
Uncontrolled and unplanned solid waste disposal systems have been a substantial source of land, air and water pollution in Georgia. In 1972, the General Assembly passed the Solid Waste Management Act, which provides for assistance to local governments concerning site selection, and general upgrading of solid waste disposal systems.

Results
Georgia is meeting with much success in cleaning up its land, air and water.
Of some 440 industrial systems which discharge into State waters, all have been issued discharge permits that provide they meet minimum discharge standards within an established time. Only one industry is not meeting its compliance schedule.
Similarly, more than 490 private and institutional systems have been issued discharge permits and are basically in compliance.
In line with the new State grant program, the General Assembly appropriated $2 million in both fiscal years 1973 and 1974 to fund this program. Twelve communities from Clayton and Blue Ridge in North Georgia to Savannah Beach on the coast received water quality grants in 1974.
By the end of1973, all significant sources of air pollution were placed on compliance schedules. More than 500 emission control permits were issued resulting in a 20 percent reduction in the concentration of smoke and dust in the State's atmosphere.
Georgia's Solid Waste Management Program has resulted in an increase of State expenditures from $152,000 in 1971 to $2,460,000 in 1974, including $2 million grants to local governments for collection, transportation and processing of solid waste. The enforcement aspect of the program will result in the closing or conversion to sanitary landfills of more than 520 open dumps.

46

Unmet Needs
Sewage systems operated by local governments represent the major current water pollution problem. Correcting this existing problem will cost an estimated $1.1 billion -- making the problem one of giant proportions.
Limited personnel has hampered the EPD in its quest to in.ventory and monitor air pollution sources in Georgia. The. Federal Environmental Protection Agency has recommended an increase of 40 positions for this activity.
Continued State grants to local governments will be necessary for the next three to five years to implement an effective Statewide solid waste management program. The State should continue efforts to train local government employees in the proper operation of solid waste systems.
47

Economic Growth

Action

Results

For decades, Georgia has trailed the national average in per capita income, which means that the average Georgian has had less money to spend than the average American.
In recent years, Georgia's growth rate has been exceeding the national average with only a few exceptions and the percentage gap in per capita income has been gradually declining. Georgia's per capita income in 1973 was 86.3 percent of the national average in 1973 as compared to 84.4 percent in 1970.
One major goal of the State is to continue a program of economic development that will eventually result in the average Georgian earning as much money as the average American.
Many agencies -- public and private -- have a goal of boosting Georgia's economic growth. The main agency at the State level is the Department of Community Development.
To provide this Department with more capability to carry out its program, the State has been gradually increasing appropriations for economic development in the last four years.
The Department works to accomplish its goal in five primary areas -- seeking new industry and supporting expansion of existing industry, building the tourist business, expanding international trade, promoting movie production and assisting local communities in achieving a balanced and orderly pattern of growth and development. (See separate sections in this publication on INTERNATIONAL TRADE AND MOVIE PRODUCTION.)
50

In 1973, Georgia experienced the best year of industrial growth in the State's history. Capital investment was 25 percent more than any previous year with almost one-third more new jobs created than three years earlier.
Three of the most reliable indicators of a State's economic success are per capita income, gross State product activity and capital investment in new and expanded industry.
New statistics from the federal government indicate that
Georgia is right at the top in all of these areas in relation to
other states within the 10-state Southeastern region. Georgia's per capita income of $4,243 is exceeded only by
Virginia and Florida in the Southeast and is growing at a faster rate, according to federal projections.
In gross state product, Virginia and Florida also are ahead of other Southeastern states. Georgia is second among the remaining states in the region only to North Carolina, which offers more incentives to new industry than Georgia. While Georgia's $22.93 billion in gross state product is only $1.4 billion behind North Carolina for the most recent year for which statistics are available, 1972, it is $5 billion ahead of third-place Tennessee.
In capital investment in new and expanded industry, Georgia was second only to North Carolina, but Georgia has been growing at a faster rate since 1966.
Tourism is booming in Georgia as well. Total travel expenditure in Georgia increased from $1.2 to $1.4 billion between 1971 and 1973. Welcome Center attendance is up 27.3 percent, State tax revenue from the travel industry increased 24.9 percent, and taxes attributable to tourists climbed 73.8 percent.

GEORGIA'S TOTAL CAPITAL INVESTMENT 1964-73
(millions)
762

Unmet Needs
Economic growth is the way to provide a higher standard of living for Georgians. The State does not now -- and should not in the future -- subscribe to a policy of non-growth.
Yet, it is important to grow in a way that does not sacrifice the interests of Georgia's workers, taxpayers or its environment. The State should continue a vigorous program of seeking industry that will raise the wage level of our people and pay a fair share of taxes.
The records prove conclusively that Georgia has been competitive in attracting new industry and can continue to do so with basically the same incentives.
Georgia does need to enact into law one major incentive, however, to enhance its competitiveness with other states economically. Needed is a law which removes the unfair tax on inventories temporarily stored in Georgia, or on its docks or wharves, for future distribution outside the State.
Legislation will be introduced in the General Assembly next year to enact such a law. This will enhance Georgia's traditional role as distribution hub of the Southeast.

1964 1965 1966 1967 1968 1969 1970 1971 1972 1973
51

International Trade

Action

Results

In 1971 the State formed the International Division of what is now the Department of Community Development. Its objective is to develop an environment for attracting international business, trade missions and consular offices to the State.
To foster more economic activity between Georgia and foreign countries, the State in 1973 opened promotional and development offices in Brussels, Belgium and Tokyo, japan. Part-time representatives were appointed in Toronto, Canada and Sao Paulo, Brazil.
These offices function to increase investment in Georgia by foreign countries, assist the Georgia businessman in exporting Georgia products overseas, and attract tourists to the State.
To further promote economic activity within the American Hemisphere, the State added a Special Assistant for Canadian and Latin American Affairs to its international staff in 1972.
Governor Carter has conducted two highly successful trade missions to promote international trade for Georgia. In 1972 he visited Latin America and in 1973 he toured Europe and Israel. Numerous other important trade missions have been conducted and are planned by the Department.
The 1973 General Assembly approved construction of a $35 million World Congress Center in Atlanta with twin goals of promoting the sale of Georgia products both domestically and overseas, and attracting national and international meetings to Georgia to boost the State's economy.

Since the International Division was formed, there has been a substantial increase in foreign investments in Georgia.
Seventeen international manufacturing or assembly facilities were planned, started or completed in Georgia during 1973. These facilities represented an investment of some $140 million and are providing jobs for 2,400 Georgians.
Three existing international manufacturing facilities expanded during 1973, representing an investment of more than $5 million.
Major investments by foreign corporations in non-manufacturing totaled in excess of $30 million. Seven international companies established their American headquarters in Georgia, while 14 international companies established nonmanufacturing facilities or expanded existing sales and warehouse facilities.
More than 100 international companies now maintain headquarters, sales offices, manufacturing facilities, or warehouses in Georgia.
Atlanta has gained three additional Consulates General, increasing its total to seven. The latest was japan, which is triggering much japanese economic activity in the State.
Two international flights between Atlanta and Mexico City and Atlanta and jamaica have been inaugurated, with direct flights to Europe being sought.
The new World Congress Center will include a Georgia Hall for displaying Georgia products and is expected to playa leading role in further expansion of the State's economic activity with foreign countries in future years.

52

Unmet Needs
The State in the past four years has taken significant actions to make Georgia competitive in the international business market. Actions that can be taken in future years to build on this beginning include:
--Opening promotion and development offices in addition-. al countries, either full-time or part-time, as well as expanding the offices already open.
-- Work for a second major air terminal complex near Atlanta to meet the needs of years beyond 1980. Even without status as a major international air gateway, the Hartsfield Atlanta International Airport today is the world's second busiest in point of passenger traffic.
-- The ports at Savannah and Brunswick now contribute $1 billion to the State's economy. They should continue to be expanded as one of the most vital links in promoting foreign trade.
-- As funds permit, the staff of the International Division should be expanded to open up new foreign markets for the sale of Georgia products.
-- More countries should be encouraged to locate consulates general or honorary consuls in Georgia.
53

movie Production

Action
The Georgia Department of Community Development and Governor Carter, in late 1972, launched a major effort towards establishing Georgia as a site for the production of major feature length motion pictures and television shows.
Until this drive was launched, Georgia had been used infrequently as the site for motion picture production. In more than 40 years, only 23 movies had been filmed in Georgia. Some of the more successful were Deliverance, The Green Berets, The View From Pompeii's Head and I'd Climb the Highest Mountain. Most years went by without any movie being produced here.
As a part of the new drive, Community Development officials established contact with over 500 members of the motion picture industry through personal contact, distribution of the first edition of the Georgia Directory of Film Services, and individualized Georgia Movie Kits.
In December of 1972, Governor Carter made a highly successful trip to Hollywood to launch the State's drive for more movie production. In September of 1973, he made another successful trip to New York City. Both trips resulted in sever al production commitments.
54

Results
Lured by the State's enticements, motion picture and television producers moved into Georgia in 1973 to film eight feature length motion pictures and two television variety shows with total budgets exceeding $10 million.
The movies featured such well-known stars as Burt Reynolds, Eddie Albert, Richard Chamberlain, Jon Voight, Leslie Uggams, Shelley Winters, Arthur Hunnicut, and Troy Donahue.
The most expensive is the film starring Reynolds and Albert, The Longest Yard, which had a budget of $2.9 million. Shot at the Georgia State Prison at Reidsville and in Brunswick and Savannah, the fil m tells the story of a professional football player who is sent to prison and promotes a game between prisoners and guards.
The Last of the Belles was filmed in Savannah for original showing on television. It deals with the early courtship of F. Scott Fitzgerald and Zelda.
Other films and their locations include: Conrack -- Georgia coast. Buster and Billie -- Statesboro. House on Skull Mountain -- Atlanta. Distance -- Savannah and Hinesville. Moonrunners -- Haralson. Poor Pretty Eddie -- Athens. Two variety shows filmed in Georgia were Bill Daily's Hocus Pocus Gang starring David Janssen, Bob Newhart,and Bill Daily; and the Dean Martin Music Country Show, of which sequences of several shows were shot in Atlanta and Savannah featuring Tom T. Hall, Barbara Mandrell, Jeannie C. Riley, Ray Stevens and Jerry Reed.

Unmet Needs
With the number of motion pictures filmed in Georgia in 1973 totaling one-fourth of all the movies produced here in over 40 years, the State got off to a fast start in its new program of making Georgia the Hollywood of the South.
Based upon actual production, commitments and contacts; Community Development officials estimate the budgets for movies made in Georgia in 1974 could double the $10 million budgets for 1973 fil ms.
To keep the thrust going, the State has established a goal of locating a major studio in Georgia that would combine movie production and tours. Several contacts have already been made.
In its promotional campaign, the State also is encouraging the location in Georgia of more movie technicians. With a large reservoir of technical experts living in the State, the likelihood of on-site filming of motion pictures will be greatly enhanced.
A scene from the movie, "Conrack," which was filmed on the Georgia coast in 1973. The movie stars Jon Voight.
55

r&.I
C
(I)
E.c..
(I)
~
"-~
(cI)
(I)
"

ProQerty Tax Reform

Action

Results

As property taxes have continued to skyrocket, taxpayers have demanded that reforms be instigated. They have been especially concerned about the inequities of property tax assesments within their own jurisdiction as well as among the various local governmental units.
As a result, there has been widespread support for increased efficiency in property tax administration to insure that assessments are accurate and equalized and to insure economy in performing the appraisal work.
In response to this growing demand for property tax improvements, the 1972 General Assembly enacted a series of property tax reform measures.

A recent report of the International Association of Assessing Officers comparing the equity and fairness of property tax assessments among states shows Georgia leading the nation in property tax assessment improvements.
For the first time, persons selected to serve as tax assessors in Georgia must meet minimum qualifications directed toward abi Iity to assess property.
Each county is required to employ, depending upon its size, a minimum number of professionally qualified appraisers to insure sufficient full-time expertise to assist asse~sors.
Reform measures authorized the development of standard, uniform appraisal methods and manuals to insure a standard State system of property appraisals.
Duplication of appraisal effort by city and county governments has been eliminated so that only one appraisal for tax purposes is made for any particular property.
Previously a taxpayer could not appeal his assessment to an independent body except by expensive arbitration pro" ceedings or through the courts. Now each county has a local board of equalization which hears all appeals within the county for that year at no cost to the taxpayer. The State Board of Equalization has been created to hear appeals from assessments made by the State Revenue Commissioner.
Specific legislation was enacted with respect to the annual review and approval of all county tax digests by the State. The legislation requires the millage rate to be reduced by an amount equal to any increase in valuation, thus preventing any overall increase in taxes as a result of revaluation.
58


f

Unmet Needs
While much progress has been made toward equitable property tax administration, many recent technological advances can be used to make the process faster, more accurate and less costly. Computerization, for example, which has already begun, will be a major improvement and should be fully implemented as quickly as possible.
Efforts should continue to insure that the property tax burden, in comparison with the total tax burden, falls more fairly on each segment of Georgia citizens.
An additional problem in our property tax system is the unfair taxation of open land based on the value of surrounding land rather than its use or income producing value. This problem is particularly acute in countries adjacent to our rapidly growing urban areas. Its effect is to force the sale and development of land that otherwise would have been retained as badly needed open land.
Now that equality of assessment is being assured, a careful look should be taken at the various systems of land reclassification which would allow property to be taxed on its use with a compensating higher tax on any increase in value if and when it is sold.
59

Pro~erty Tax Relief

Action

Results

One of the most pressing problems which has confronted Georgia -- and other states as well -- has been the growing demands made on the property tax.
Local governments are concerned because they must rely on property taxes for most of their revenue. To meet the evergrowing costs of government, property taxes for years have been climbing about 10 percent.
Taxpayers are concerned because the increases are costly to them at a time of rapidfire inflation.
Since both the State and federal governments have a much broader base, many taxpayers and local officials have long felt they should do more to help local governments financially.
Georgia's State Government has taken several actions to ease the burden on property tax owners -- freezing required local effort for education, forcing the State to pick up a larger share of educational costs; increasing the homestead exemption to help the elderly and poor; and allowing payment of property taxes on a quarterly basis.
60

One of the principal causes of rapidly escalating property taxes prior to 1971 was annual increases in the required local effort or chargeback necessary to finance the Minimum Foundation Program for Education. From 1962 to 1970, this portion of the property tax burden increased by $41.5 million.
In 1971, the General Assembly, acting in response to a campaign commitment of Governor Carter, froze the local contribution to the MFPE at $78.5 million each year. Since that time there has not been one cent of increased property taxes for this purpose.
Without this action, Georgia taxpayers in 1974 would be paying $104 million, or $26 million more than present requirements.
In 1972, a constitutional amendment was passed by the General Assembly and ratified by the people to allow low-
income, elderly citizens exemption from local school taxes. The 1974 General Assembly implemented the amendment
by granting a homestead exemption not to exceed $10,000 to all Georgians aged 62 or older who earn $6,000 or less. The benefits have not yet been calculated, but the action is expected to benefit thousands of elderly, low-income citizens.
Payment of property taxes in a lump sum once each year has been a burden on many low and middle income taxpayers. In accordance with a recommendation of the State and Local Government Coordination Study, the General Assembly in
1974 approved the payment of ad valorem taxes quarterly. In addition to the benefits of this law to taxpayers, local
governments now will have use of taxes over a greater period of time, thus inspiring their cash flow and planning capabilities.

Unmet Needs
The property tax system should, to a larger extent, take into account each taxpayer's "ability to pay." Accordingly, a . "circuit-breaker" amendment to the Income Tax Law was proposed by Governor Carter which would have granted additional property tax relief to the elderly and to persons of limited income. This amendment to the law has not yet been approved.
The State some years ago took over all local costs of providing welfare services. The State also should take over the $17.5 million cost of health services from local governments. This would help to equalize services as well as relieve property taxes.
The State and Local Government Coordination Study in 1972 recommended a $50 million property tax relief program which would be implemented through a system of State grants to reimburse local governments for reducing the property tax burden of all home owners and renters.
This recommendation was passed by the 1973 General Assembly, but was amended to apply to all property owners.
When the 1974 General Assembly appropriated another $50 million to be distributed according to the same law, Governor Carter vetoed the appropriation. He said he feels that utilities, large corporations and wealthy land owners shared too heavily in the tax relief effort. He said it isn't fair to take money from the general treasury and give it to wealthy landowners.
Governor Carter said a new program of property tax relief should be implemented, but it should provide direct relief, not rebates, and should be aimed primarily at the homeowner and renter.
61

Ca.)h management

Action
Until the early 1960's, the State deposited its idle funds in banks without requiring the payment of any interest. Even when the State started requiring interest on its deposits, most funds were placed on time deposits at rates determined by the Federal Reserve discount rate. The rate generally was well below the actual money market and as a result the State lost millions of dollars each year.
When the State Depository Board was reactivated in 1971, the State made long overdue policy changes in the management of its reserve funds.
Two actions were taken in 1972 that have zoomed interest earnings. 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.
In addition, any banks desiring the deposit of State funds are now required to bid on the amount of interest to be paid on State funds deposited with them -- in effect requiring banks to pay current market interest rates, which are generally higher than the Federal Reserve discount rates.

Results
In 1964, only 28 percent of available State cash was invested. This yielded $2.3 million.
By 1970, the State was investing 50.5 percent of its funds, with a yield of $8.2 million that year.
With the new policies in effect, the State in FY 1974 invested 88.9 percent of its available cash and earned a whopping $28.2 million in interest collected. This is an increase in earnings of 344 percent in only four years.
Using the computer controlled "cash flow" system, the State is putting more and more of its idle dollars to work.

62

Interest Earned on State Deposits

(in millions)

~

1970

1971

1972

1973

1974

Percentage of State Funds Earning Interest

Ii81.4%

88.9%

78.4%

64.4%

50.5%

Unmet Needs
The major actions have been taken to put the State's idle funds to work earning interest. The need now is to continue perfecting the present cash management system to more accurately forecast the cash flows required to operate State Government on a day to day basis.
More accurate predictions will free additional funds for investment, thus increasing interest earnings.
But the future increases will be small compared to the past. With almost 90 percent of available cash invested at all times, there are no big bonanzas still to be tapped.
Another need is authorization for the State to purchase government obligations, treasury bills, etc. With this capability, the State could net approximately $500,000 in additional interest per year through overnight transactions.

1970

1971

1972

1973

1974

63

Egual Em~loyment

Action
In recent years, American people have begun to put the force of law behind the principle that every citizen - regardless of race, color, creed, or sex - should have an equal opportunity for employment.
State Government must put its own house in order as well. Black people represent almost 26 percent of Georgia's population, yet they make up only 18.4 percent of all State employees.* Although women constitute nearly one-half of State employees, they hold only six percent of the top decision-making positions in State Government.
In 1972, the Employee Relations Division was established within the State Merit System of Personnel Administration. One of its major responsibilities is to coordinate the development and implementation of Affirmative Action Plans within those State agencies covered by the Merit System. The purpose of these plans is to outline specific actions, establish goals, and set timetables to insure equal employment opportunities in State Government.
Progress has been made through the Executive appointment of black citizens to major statutory and constitutional boards. Many of these appointments required, and received, confirmation by the State Senate.
*Merit and non-merit State agency employees, excluding University Sytem.

Results
In 1970, only three black citizens served on three major statutory or constitutional boards. Today, a total of 53 black individuals are serving on 32 such boards whose members are appointed by the Governor. Forty-eight of these appointments were submitted to and confirmed by the State Senate.
Fifteen of the twenty-eight State agencies covered by the State Merit System have developed or are developing Affirmative Action Plans with the assistance of the Employee Relations Division of the Merit System. These fifteen major agencies, however, employ 93.5 percent of the 36,243 employees covered by the State Merit System, with the remaining agencies together employing less than 2,500 employees.
In addition, 29 of the 30 schools of the Georgia University System with approximately 29,000 employees have implemented Affirmative Action Plans.
In 1971, the State employed 4,850 blacks under the Merit System, or 14.5 percent of all employees. This number had increased by 1973 to 6,684 blacks, or 18.4 percent of all Merit System employees.

64

Unmet Needs
The low percentage of black State Government employees in relation to their numbers in our population is indicative of a great unmet need.
Like women, blacks also are under-represented in the top, decision-making jobs in Georgia's government. Of 343 such positions, only two are held by black individuals.
Although progress has been made, a continuing effort is needed to assure that Georgia takes the lead in this area. The State Merit System is committed to providing a leadership role in this effort by assisting departments in initiating individual Affirmative Action Plans and by promoting and establishing practices and procedures consistent with merit principles which will provide true equal employment opportunities to all persons.
To expand minority employment, the State Merit System is developing new approaches to applicant testing, examination scoring, maintaining employment registers and improving employer-employee relations so that the State will take the lead in providing a modern personnel system for all persons.
65

Dudgeting and Planning

Action

Results

Until the Reorganization Act was passed by the General Assembly in 1972, the functions of budgeting and planning were located in separate agencies in Georgia's State Government.
Although both agency heads were appointed directly by the Governor and answered to him, the two agencies operated separately with little or no cooperation between them. This minimized the probability of ever implementing the planning that was being done.
The Bureau of State Planning and Community Affairs also was doing most of the program planning in State Government with no mechanisms for synchronizing its efforts with the state agencies. Department heads often were skeptical and sometimes reluctant to push for implementation of proposed improvements.
Reorganization merged the roles of planning and budgeting into the new Office of Planning and Budget.
To further improve the budgeting process, Georgia in 1971 became the first government to undertake the newly-developed concept of zero-base budgeting.
Under this novel concept, the State Government is divided into several thousand functions and each is analyzed individually and assigned a priority status. Every dollar requested for expenditure during the next budget period must be justified, including continuation of current expenditures. In a new budget year departments previously had concentrated primarily on dividing the new money available.

In putting the roles of budgeting and planning together to form a working partnership, Reorganization made one other basic change. The role of program planning was turned over to the various State Departments. This was possible because agencies providing similar services were combined into a single agency large enough to justify its own planning staff.
For instance, recreational planning was once done by the former State planning agency. This planning is now the responsibility of the Department of Natural Resources.
As a result, planners in the Planning Division of OPB have assumed a new role of policy planning and program evalua-
tion. By restricting program planning to the agency level, there is a greater chance that it will be implemented.
Budget analysts and planners now work side by side in planning each year's budget which the Governor submits to the General Assembly. Planners start working with department heads and the Governor in early summer developing the programs desired for the next budget year.
By the time budget analysts start putting together the actual budget proposals in dollars and cents, many program implementation decisions have already been made. This improves the communications between the Governor and departments and creates a better budget relationship.
Zero-base budgeting has helped to strip the veil of secrecy from the bureaucracy by opening up for inspection and scrutiny the activities of every single state employee. This is done by requiring "decision packages" which describe and rank every single function within a department's operations.

66

Unmet Needs
The planning capabilities of State agencies should be strengthened.
Since agencies were doing little program planning before Reorganization, they are still in the early stages of developil'1g their planning programs. State planners from OPB are providing technical assistance in helping them to define and implement their new roles.
Systematic efforts should be undertaken to collect and analyze data to indicate how well agency programs are meeting the needs of the people they are designed to serve.
Also, each State agency should develop a long-range plan of services that it should be providing.
Relationships between Area Planning and Development Commissions and State planning should be strengthened. Local and area input into all State level planning efforts also should be strengthened.
67

Judicial Reform

Action

Results

Over the past decade, Georgians have become increasingly concerned about the need for a modern and effective system of criminal justice.
Some of the recognized needs were the rapid apprehension, trial and conviction of criminals; equality of justice without regard to economic or racial status; and the recruitment of Georgians with the highest of professional qualifications into high judicial posts.
The Governor's Commission on Judicial Processes was established in 1971 to make recommendations for the improvement of Georgia's judicial system.
The Commission made 30 recommendations involving a wide range of judicial reform programs. Most of these have been implemented by one of four ways - legislative action of the General Assembly; constitutional amendments approved by the voters; Executive Order by the Governor, or administratively.

Filling a major void, the Judicial Qualifications Committee on Discipline and Removal of Judges was created through a constitutional amendment ratified by the voters. This nonpolitical Commission has the power to investigate citizen complaints about any court or judge in Georgia.
In an effort to make sentencing faster, more consistent and fairer, the presiding judge has been given power to determine sentences in non-capital cases. Previously, Georgia was only one of six states which allowed the jury to determine sentences along with guilt or innocence.
A three-judge panel also has been created to review sentences of over five years. The panel cannot raise a sentence, but can lower it. This law should provide assurance against unusually cruel punishments as well as contribute to consistency in sentencing among judges.
The "unsworn statement," which permitted defendants to make a statement on the witness stand without fear of crossexamination by prosecuting attorneys, was abolished.
The Georgia Judicial Council was established in 1973 to serve as the Administrative Office of the Courts.
The legal age for minors was reduced from 21 to 18. Governor Carter instituted a merit system of selecting judges with creation of the Judicial Nominating Commission by Executive Order. This system removes politics as a factor in selecting State judges and guarantees the appointment of highly qualified judges. These are only a few of the major reforms instituted in the last four years to create a more efficient and fairer judiciary.

70

Unmet Needs
Although a majority of the judicial reform recommendations have been implemented, there are several on which action is still needed.
A constitutional amendment creating a Unified Judicial System in Georgia will be voted on in the November, 1974 General Election and should be approved by the voters.
All courts would be made a part of one Unified Judicial System, with the General Assembly providing by law for administration of the System.
Other judicial reforms still needed include: -- The selection of juries on a regional basis, rather than in each county, to insure the possibility of picking jurors who are unfamiliar with the parties in a case. -- The need for venue requirements that contribute to speedy, efficient and just settlement of all issues arising from a particular case in a single court. -- The establishment of standards for the negotiation of pleas to insure justice to the defendant, protection for society and a speedy procedure. Every Georgian under criminal investigation, regardless of income, has the right to counsel. But this right still is not being provided to all Georgians. A comprehensive system to provide legal aid to indigents is needed badly.
71

Offender Rehabilitation

Action

Results

Georgia's prisons once served only as incarceration centers. The infamous punishment-oriented "chain gang" and "rock quarry" days are not too many years past.
But in recent years, rehabilitation has been replacing incarceration as the primary mission of the corrections system. This mission was spelled out even more clearly with creation of the Department of Offender Rehabilitation through Reorganization in 1972.
There have been dramatic improvements in the education, counseling and vocational training provided inmates, and in the quality of personnel administering the many expanded and new programs.
Not long ago, the typical inmate left prison with only $25 in his pocket, the suit on his back and a bus ticket. Today a Work Release Program is in effect that is allowing 456 inmates to work outside the prison during their last months in confinement. They not only pay board to the State, but send money to their families, often keeping them off welfare rolls. These inmates now can re-enter society with a bankroll and a steady job.
A program has been launched to build eight Community Correctional Centers housing 450 to 500 inmates each, with funding already provided for three centers at Columbus, Macon, and Atlanta. Their emphasis will be to strengthen family relationships and increase the possibilities fo r successful rehabilitation.
Also, a new prison for women will open in June, 1975 and a community-based rehabilitation center for women is opening in Atlanta.

Not enough years have elapsed to critically judge the rehabilitation efforts, but officials believe efforts are paying off.
The graphs on the opposite page illustrate the dramatic increase in the number of inmates taking educational, vocational and treatment programs. The number of inmates participating in these programs increased almost fourfold in an 18-month period in 1972 and 1973.
The professional caliber of personnel within the Department has improved dramatically. In 1971, not a single warden held a college degree. Today more than half of the top administrators have a bachelor's or a Master's degree. One holds a doctorate.
The number of training programs for department personnel has increased from 39 in 1970 to 102 in 1973. The number of personnel receiving training has increased even more sharply -- from 313 to 1,268 for the same period.
Today there are 130 professional counselors, a proven rehabilitative tool, working within the system. There were only 30 in 1971.
Today there are 109 fully accredited teachers offering courses in every State institution to upgrade the education of inmates. In 1971 there were only 25 part-time teachers employed in the entire penal system.
Programs have been introduced spanning literacy training and basic education through high school and college equivalency.
The Youthful Offender Division was created by legislation in 1972, enabling the increased segregation of certain youths from older, hardened criminals.

72

INMATE PARTICIPATION

Educational Programs

1456

4/72 7/72 10/72 1/73 4/73 7/73 10/73
Vocational Programs
1355
4/72 7/72 10/72 1/73 4/73 7/73 10/73
Treatment Programs
721
4/72 7/72 10/72 1/73 4/73 7/73

Unmet Needs
Georgia for years has had a large prison population in relation to its total population. For instance, the State's prison population is roughly triple that of such states as Tennessee and Wisconsin, which are in the same population range.
To make matters worse, Georgia's prison population is continuing to increase at an alarming rate. On the last day of May, 1974, the State's inmate population totaled 9,843 -- a substantial increase over 8,555 inmates just 13 months earlier. During the months of April and May, a total of 1,388 offenders were committed -- the largest two-month increase ever.
If the present trend continues, Georgia is predicting 10,500 inmates by the end of December, 1974.
This fast growth is creating serious problems with overcrowding.
Because of the overcrowded conditions, flexibility in assigning inmates (separating youths from experienced criminals, for instance) has been deterred.
The average correctional officer now supervises 200 inmates, twice as many as is ideal.
More than 24,000 persons are on probation and the average probation officer supervises 110 persons instead of the recommended 50. The addition of 31 new officers in FY 1975 will help but won't solve the problem.
Medical and psychiatric care is minimal. Present salary levels are too low to attract the quality of professionals needed.
Most prisons also are located away from population centers so that many community resources cannot be utilized. The new correctional centers will help solve that problem, but most are many years away.
73

G. D. I. U~grading
Action
Crime is increasing in Georgia at a faster rate than the population. Local police and other law enforcement agencies are finding it difficult to cope with the soaring crime problem and increasingly are asking the State to help solve the more serious problems.
Reacting to this growing demand, the State made a commitment in 1972 to reorganize and upgrade the Georgia Bureau of Investigation, its crime-fighting agency, into the finest law agency in the nation.
In the Reorganization Act, the agency was placed directly under the new Board of Public Safety, but remained as an administrative function of the Department of Public Safety. In the 1974 law, the GBI was separated from the Department and created as a separate administrative agency. It still reports, however, to the Board of Public Safety.
To upgrade the GBI, salaries have been raised in an effort to attract higher caliber personnel.
Until 1972, no pre-service training was required for GBI agents. A nine-week training course involving detailed criminal investigation and crime prevention doctrines was developed and every agent on the job was required to take it. This course, which is constantly assessed as to its effectiveness through feedback from the field, is now required of all new agents before they take any assignments.
In addition, follow-up seminars and workshops are held periodically to keep agents up to date concerning latest crimefighting techniques.

Results
Actions taken in the reorganization and professional upgrading of the GBI include:
-- The creation of nine regional offices to provide faster, more complete investigative services on a geographical basis.
-- The Georgia Crime Information Center was established to provide law enforcement agencies throughout the State information about stolen cars, guns or other criminal data within seconds through a radio-telephone hookup to computers.
-- The Crime Laboratory has been expanded twice in the last three years and a new branch is presently under construction. This expansion has been crucial in view of recent increases in drug-related crimes.
-- A Major Case Squad was formed for assignment to high crime rate areas. The squad especially is concerned with syndicated criminal activities.
-- Recruitment standards have been raised substantially. Previously, only a high school education was required to be an agent. Today, a candidate must have at least one year of college, pass both an agility test and an eight hour examination, and be approved by a special Oral Review Board.
In early 1974,41 new agents were chosen through this rigorous process from among 627 applicants. Twenty-eight of these new agents are college graduates and 10 more have completed two or more years of college.
Eight of the 41 new agents obtained degrees in criminal justice and eight more studied criminal justice while in college.

74

Unmet Needs
The threat of organized crime in Georgia is increasing daily. To effectively deal with this problem, the GBI must have investigators and supportive attorneys who are specially trained in management, accounting and other related fields.
The GBI should have the authority to serve and execute arrest warrants on a Statewide basis -- authority it does not now have.
A more general but equally important need is for better citizen education concerning the role of the police in a free society. Fear through ignorance is both a stumbling block to investigators and an opportunity for abuse of an individual's civil rights.
75

Drug Law Enforcement

Action
Drug pushers are among the most elusive of all criminals. Yet, their impact on crime is widespread because so much crime is committed by drug addicts seeking money to feed their habits. Experts say drug-related crimes may run as high as 30 percent of crimes involving property.
Older lawmen find it very difficult to work undercover to ferret out the drug pushers because their age makes the drug cri minals suspicious.
To solve this problem, the General Assembly in 1973 passed legislation authorizing the special use of youths between the ages of 18 and 21 in a new Undercover Narcotics Program.
The modus operandi of the youths, who work part-time under contract, is to infiltrate gatherings where the narcotics problem is believed to exist and obtain information leading to the arrest of drug pushers.

Results
The Undercover Narcotics Program has been the most efficient and least costly of any investigative program ever undertaken at the State level. This program has made a significant contribution to the control of the drug traffic in Georgia.
In the first year after the program went into effect, 610 felony arrests were made by these below-age undercover agents involving $8.6 million in illicit drugs. The conviction rate for those tried was an astounding 96 percent.
During this period, the youthful agents operated in 106 of Georgia's 159 counties lending assistance previously unavailable to local law enforcement agencies.
Free from time-consuming work on small drug cases, the GBI's full-time career agents have been able to concentrate their efforts on the leading drug kingpins in the State.

76

Unmet Needs
Because of the overwhelming success of the Undercover Narcotics Program, it should be expanded. The demand for this service by local law enforcement agencies is surpassing its availability.
This successful effort to control drug traffic on the local ' level should be accompanied by increased activity against major drug dealers in the State.
77

Civil Di~order~ Unit

Action
Whenever social conflicts erupt into violence in Georgia, the State has a responsibility to move in and protect the lives and property of its citizens.
Until the early 1970's, action by the State meant sending in State troopers. However, uniformed lawmen are highly visible and occasionally can create additional tensions by their presence.
Moving to counteract this problem, the State in 1970 created the Civil Disorders Unit (C.D.U.) within the State Department of Public Safety.
The Unit, which is funded by federal and State monies, consists of four sworn personnel in plain clothes who go into an area at the first sign of trouble. Their mission is to quietly determine the causes of the conflict, identify its leaders, and try to reduce immediate tensions so that the problems can be resolved in a responsible and peaceful atmosphere.
Georgia is the only State receiving federal assistance that employs this approach to civil strife. In most cases, the only alternative course of action has been to send in large numbers of uniformed patrolmen or troops in an attempt to contain the situation.

Results
Now in its fourth year of existence, the Civil Disorders Unit has been called to lend assistance in 55 counties -- many of which have employed the C.D.U. on three or four occasions.
In only three instances has it been necessary to use State troopers after the C.D.U. arrived on the scene.
The graph on the following page reflects the Unit's impact. State troopers spent 12,113 manhours in 1968,20,927 in 1969 and 45,910 in 1970 in civil disorder trouble spots.
When the Civil Disorders Unit was organized in late 1970, the number of trooper manhours spent in trouble spots began to decrease immediately.
In the C.D.U.'s first full year of operation in 1971, the number of trooper manhours spent on civil disorders dramatically dropped from 45,910 to only 3,708 and dropped even further in 1973.
The continued reduction in time spent by uniformed troopers quelling civil disorders is plain proof that the Civil Disorders Unit has performed its job well.
Because of its success, members of the Unit have been requested by other states to assist them in establishing similar operations.

78

STATE TIME SPENT ON CIVIL DISORDERS
45,910
-MANHOURS SPENT BY
STATE TROOPERS ON CIVIL DISTURBANCES
~
MANHOURS SPENT BY CIVIL DISORDERS UNIT IN ACTIVE TROUBLE SPOTS

Unmet Needs
The work of the Civil Disorders Unit can be viewed only as treating the symptom. The greatest need, of course, is to analyze the roots of conflict and work towards lasting solutions.
When not answering calls for assistance, the Civil Disorders Unit is involved in preventive work.
But these are only four men devoting their time to a Statewide effort to make life peaceful for all citizens. A much greater effort by a lot more Georgians is needed in the area of prevention. This is especially true in terms of involving community leaders, opening lines of communication among all Georgians, and coping with motivational problems.

1968 1969 1970 79

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Tran.)~ortat ion

Action

Results

Until 1972, no single State agency had responsibility for planning and developing all modes of transportation in Georgia. The former Department of Highway functioned only to plan, construct and maintain the State's system of highways.
The former Department of Industry and Trade operated an Airport Division, but its main thrust was to assist local governments in financing small airports. The division had no planning resources.
Through Reorganization, the Department of Transportation was created and given the responsibility for coordinating the planning and development of all modes of transportation in Georgia. This includes highways, mass transit (both rail and bus), water and air.
Reorganization also required the Department to implement a long-range highway planning program covering 20 years, with a short-range five-year construction program updated every five years. This will allow local governments to plan local development along with the Department of Transportation.
82

The new Department of Transportation moved quickly into multi-modal planning and development.
In the area of airports, the Department is preparing a Statewide Airport System Plan which will be updated on a regular basis in future years. The Department also is providing funds to assist and monitor preparation of airport master plans, and for developing and implementing basic State aviation safety programs.
In the area of mass transit, the new Department is concentrating on assisting local governments in planning and funding improvements in bus services. State Mass Transit Grants provide 10 percent in matching funds required for the purchase of buses and related transportation facilities. Eleven cities are receiving such grants in FY 1975.
As a result of the new long-range planning project, the Department has implemented a multi-project programming
and scheduling system that involves concentration mostly on highway projects for which funds are available to let contracts.
In 1970, the State lost $14 million in federal highway funds because pre-construction activities had not been completed when funds were available.
But in 1973, the State earned an additional $20 million in federal funds because of the new programming and scheduling system.
This accomplishment was possible despite a five percent reduction in the Department's total work force in a six-month period beginning in December of 1973 because of economies and efficiencies that resulted from implementation of Reorganization recommendations.

Unmet Needs
After the Statewide Airport System Plan is completed in late 1974, the State should consider increased involvement and funding in the development of local and regional airports within Georgia. In this connection, the State should be involved in planning for the proposed second Atlanta Airport, . which will serve as a Southeastern regional airport as well as a State regional facility.
In the area of mass transit, the State should undertake a needs study and formalize a program of grants to local governments aimed at providing local transit improvements as an alternative to the automobile. More coordination also is needed between highway and transit planning.
The major need in highways is a timely completion of the Interstate System. With present federal funding levels, Georgia's Interstate System won't be completed until 1986 based on a projected annual inflation rate of seven percent. Completion will be pushed back to 1990 if inflation hits 10 percent a year. The Federal Government should expand its funding levels to speed up the program.
Another highway need is a major resurfacing program for county roads not on the State system. The present pace is insufficient to meet existing needs.
In the future, the State should focus more attention on upgrading existing State highways to make them safer and more efficient for traffic than on constructing new highways.
While the needs are growing in the area of transportation, motor fuel revenue is decreasing because of the fuel crisis. Increased funding will be necessary if the State's transportati on needs are to be met.
83

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Reorganization Structure

Action
The 1971 General Assembly approved a year-long study to make recommendations for the Reorganization of the Executive Branch of Georgia's State Government -- the first such action since 1931.
During that interval of four decades, the number of State agencies had mushroomed from 18 to about 300 while State population was increasing only 50 percent.
This unrestrained growth had resulted in multiple examples of duplication of effort, overlapping responsibilities, ineffective or nonexistent control, and general confusion from Georgia's citizens and public officials.
The objectives of Reorganization were to group like functions into a manageable number of agencies, clearly define responsibilities and authority, centralize control at the top, initiate management improvements and consolidate administrative services.
Immediately after the General Assembly ordered Reorganization, a study was launched to prepare a plan for submission to the 1972 General Assembly. During the next year, some 117 volunteers representing business and government spent the equivalent of 34 man years on this effort.
Some 300 recommendations were made to the 1972 General Assembly. More than 90 percent of the program was approved by the legislators and on April 6, 1972, the Reorganization legislation was signed into law. A new State Government emphasizing more services for every tax dollar began operating less than three months later.

Results
The some 300 agencies, boards, commissions and departments were reduced to 22 major operating agencies, with substantial savings in administrative costs and enhanced service delivery.
The Department of Human Resources is an example of how the consolidation of agencies took place. All agencies relating to health, welfare and vocational rehabilitation were brought together into this single agency, which was given a mission of maintaining an all-out attack on problems dealing with the physical, mental and social well-being of Georgia's citizens.
The Department of Natural Resources brought together 33 separately budgeted agencies or functions of agencies so that the fragmentation of efforts could be ended and one department could concentrate on improving Georgia's natural resources.
Through the new Department of Transportation, the State for the first time has an agency charged with planning and coordinating all modes of transportation in Georgia, including airports and mass transit systems, as well as highways.
Similarly, the Department of Offender Rehabilitation combined all functions dealing with imprisonment, rehabilitation, pardons and paroles, and probation; the Department of Community Development consolidated efforts to help local governments achieve a balanced and orderly pattern of growth and development; and the Department of Public Safety broadened the State's efforts in criminal investigation, law enforcement and public safety.

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Unmet Needs
Unchecked growth seems to be a tendency of all governments. Growth in services to citizens is a worthy goal, but. not growth in the agencies that provide these services. If Georgia reverts to the pattern of the past, Reorganization will not fully have served its purpose.
Reorganization provided the basic number of agencies needed to provide services and special attention is needed in the future to keep the number of agencies from growing any larger in the future.
For instance, Georgia, until 1972, had never had a single agency responsible for housing. Reorganization recommended that housing efforts be consolidated. A State Office of Housing was created in 1972 and placed under the State Department of Human' Resources because it has the basic function of helping needy Georgians. If the tradition of the last four decades had been followed, a separate department with its own accounting and administrative personnel might have been created. Many thousands of dollars a year are being saved by creating a State Office of Housing and attaching it to an existing department. The services provided Georgians are actually improved because they are tied into other services already being offered.
Further proliferation of agencies must be avoided.

87

Reorganization Economy and Efficiency

Action

Results

Prior to Reorganization, there was little cooperation between State agencies. Each agency, regardless of its small size, functioned independently and provided its own services.
For instance, most of the 33 agencies that were merged into the new Department of Natural Resources performed their own personnel, accounting and other administrative functions. In many instances, the work load was not enough to justify separate staffs, but they were necessary for the agencies to function.
This lack of cooperation was prevalent in other ways. For instance, two State agencies located within 100 yards of each other in Macon operated separate print shops. Either shop could have served the needs of both agencies.
Another example of uneconomical practices was occurring in South Georgia. State patrolmen in Waycross traveled to Reidsville - some 69 miles away - for mobile radio repairs, while Game and Fish employees in Reidsville were traveling to Waycross for the same purposes.
Until 1972, only a few State agencies were allowed to own and operate automobiles. When most State employees found it necessary to travel on State business, they were forced to use their own automobiles and were reimbursed at the rate of 10 cents a mile. Yet, other states with motor pools had reduced traveling expenses to less than seven cents a mile.
One of the primary aims of Reorganization was to create a new State Government in which maximum coordination of efforts could be attained to eliminate this wasteful expenditure of tax dollars.

Practically every aspect of Reorganization, from restructuring of agencies to management improvement recommendations, was aimed at promoting economy and efficiency in
government. When the Department of Natural Resources was formed by
consolidating 33 smaller agencies, all of the service functions
of all these agencies such as personnel and accounting were consolidated into a single operation. This saves tax dollars every year and also provides more efficient services.
The printing and radio repair duplications were eliminated by merging all of these services in State Government into a single new agency - the Department of Administrative Services (DOAS).
DOAS also opened a motor pool and purchased automobiles for rental to State Departments for use by employees traveling on State business. This has resulted in cheaper rates for the State and eliminates the necessity for employees to use their own cars on State business.
Similar examples of efficiency and economy exist in such services as data processing, purchasing, fiscal affairs, and communications which DOAS now provides for all departments.
Greater economy and efficiency occurred when the Department of Public Safety reassigned dozens of troopers from clerical duties to highway patrolling, replacing them with less costly employees able to perform the same duties.
These are just a few of the myriad of examples illustrating how Reorganization streamlined Georgia's State Government and made it operate more economically and efficiently.

88

PERCENT INCREASE IN STATE MERIT SYSTEM EMPLOYMENT - ANNUALLY - FY'65 - FY'73

SOURCE: REPORTS OF THE STATE AUDITOR
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Unmet Needs
When Reorganization was first proposed to the General Assembly, it was envisioned as a long-range project that would take several years to fully implement.
The realignment of age.ncies took place immediately, but many of the 300 management improvement recommendations are still being implemented.
Data processing, purchasing and communications are three examples of areas where the proposed changes are so extensive that several years are required to implement fully all of the proposals.
Proposed changes in these activities of government - and others equally as important - are still underway and should be continued until the recommendations are completed. If halted, the economies and efficiencies envisioned by Reorganization will not be fully realized.
Reorganization foresaw the need for a group of professional management experts who could go into the State's institutions and provide assistance in making improvements in such areas as preventive maintenance, food service operations, and others. The multitude of other improvements underway has not allowed this project to be undertaken. The need still exists and the State should consider this action as soon as possible.

FY 65 66 67 68 69 70 71 72 73
89

THIS PUBLICATION WAS PRINTED BY: PRINTING DIVISION/DEPARTMENT OF ADMINISTRATIVE SERVICES/STATE OF GEORGIA