State development policy plan; executive summary, 1972 December

STATE DEVELOPMENT POLICY PLAN EXECUTIVE SUMMARY
DECEMBER 1972
fER '2.1 '\975

STATE DEVELOPMENT POLICY PLAN EXECUTIVE SUMMARY
December, 1972
The preparation of this document was financed in part through a comprehensive planning grant from the Department of Housing and Urban Development, CPA-GA-04-Q4-1002.

TABLE OF CONTENTS

CHAPTER I INTRODUCTION

1

CHAPTER II THE STATE OF THE STATE

2

CHAPTER III PROGRAM GOALS AND ASSESSMENTS

13

Education and Intellectual Enrichment

'. . . . . . . . . . .. 13

Physical and Mental Health

16

Transportation and Communication

18

Social Development. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 19

Economic Development

20

Protection of Penons and Property . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 22

Natural Environment

24

General Government

26

CHAPTER IV STATE DEVELOPMENT POLICIES

29

CHAPTER I
INTRODUCTION
This report is a summary of the information presented in the Human, Economic, and Physical Development Policy Plan. Its purpose is to briefly assess the conditions which exist in the State, discuss the goals and accomplishments of the programs of State government, and present the executive policy which has been formulated to guide the development activities of State agencies.
This report is for use by its recipients as inputs to decisions. The recipients and their potential uses of the report are as follows:
A. Governor a) presentations of executive policy and policy implementation proposals to the Legislature; b) guide in executive fiscal, administrative and development decision making.
B. Legislature a) basis for Committees decisions for formulation of legislation; b) a guide to the Governor's policies on specific issues; c) basis for allocation decisions.
C. State Agencies a guide for functional and program planning and budgeting. D. Area Planning and Development Commissions a comprehensive State policy guide to their
planning and programming for area and local development. E. Federal Agencies a) for information of the State's policy positions; b) a means to evaluate
State policies for compatibility with Federal policies. F. Regional Commissions a) evaluation mechanism for State policies and plans against regional
policies and plans to ensure compatibility; b) ensure that local project funding requests comply with State policies; c) fulfill Federal planning assistance and program funding requirements. G. Other for information on request. This group includes other states, private development corporations, and public and private associations involved with development in Georgia.
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CHAPTER II
THESTATEOFTHESTATE
The purpose of this chapter is to discuss the conditions existing in the State in terms of Georgia's natural features, its people and the quality of life of its citizens. It is a concise summary of the prevailing development trends in the State identified in the Human, Physical, and Economic Development Policy Plan.
The Natural Features of Georgia
The State's natural features can be classified into two groups: productive r,esources and environmental resources. Included in the former category are minerals, water supplies, and prime food and fiber lands. The important environmental resources, while sometimes used for productive purposes, are the lands and waters which serve as game habitats, aquifer recharge areas, unique biotic communities, outdoor recreation areas, open spaces, and those areas which provide environmental education opportunities.
Minerals
Georgia is one of the leading mineral producers in the Nation. Of particular importance are kaolin, granite, marble and Fuller's earth. In the decade from 1960 to 1970, the value of mineral production more than doubled, and currently totals over $260 million annually. Georgia's 300 mining operations are located in almost 100 different counties. Kaolin and the heavy minerals are in the sedimentary deposits below the "fall-line", while granite and marble are found among the metamorphic soils of the Piedmont and Highlands Regions. Virtually all of the mining in Georgia is strip mining which has left more than 30,000 acres of land still unreclaimed throughout the State. Water Supplies
The quality and quantity of water resources varies across the State according to geology, topography, and rainfall. Ninety percent exists as groundwater, and most of the groundwater is contained in the huge aquifer below the fall-line. Although the supply of water in this aquifer is virtually unlimited, poor management along the coast is causing saltwater intrusion and threatening the quality of the entire reservoir.
Most of the urban population of the State is dependent on surface water supplies which are highly susceptible to drought conditions and pollution. Over one-third of the State's reo pie get their drinking water from only one river, the Chattahoochee.
Food and Fiber lands
A Soil and Water Conservation inventory in 1967 identified over 34 million acres of land used for crop, pasture and range forest, and other agricultural purposes; 92 percent of the State's total land area. During the period 1958-1967, crop land decreased by 1.6 million acres; forest land increased by 954,000 acres; and pasture land increased by 370,000 acres. Most of the agricultural land lost was due to urbanization.
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Because of soil limitations and topography, much of the agriculture of the State is concentrated in the Coastal Plains Region. The mountainous Appalachian Region, on the other hand, is heavily oriented toward poultry and livestock production. In the Piedmont Region, soils are extremely susceptible to erosion and row crops are restricted except under controlled situations.
Georgia is one of the leading states in timber production. There are over 26,000,000 acres of timber lands in Georgia. Most of this acreage is privately owned, with less than 3,000,000 acres owned by the State and Federal governments. Much of the timber production is in the Coastal Plains Region, where several thousand acres of agricultural land have been converted to timber in the past twenty years. Timber lands in many parts of the State, particularly in the Blue Ridge Mountains, are becoming more valuable for second home sites, recreation developments, and wilderness reservations than for timber production.
Environmental Resources
Environmental resources are limited in supply, and are usually impossible to create artifically. They include: 1) areas with physiographic characteristics which limit development; 2) areas which protect and restore natural resources which are vital to man's existence; 3) areas which provide habitats for unique or endangered species of wildlife, flora and fauna; 4) areas of outstanding scenic beauty; and 5) areas of historical m archaeological significance.
Appalachian Region. Within the Appalachian Region of Georgia, the main environmental resource is the Blue Ridge Mountain area. In addition to providing a natural habitat for wildlife, this area provides a major timber and recreation resource. The mountains are the origin of the water supply for over one-third of the population of the State, but the headwater streams are presently being threatened by timbering on adjoining steep slopes and by major second home developments. Although the mountains are crossed by several highways, the land between the roads is still relatively unspoiled. An important part of the Blue Ridge is the Cohutta Mountain area, a 5O,OOO"1lcre tract managed by the U.s. Forest Service. This rugged tract represents one of the largest remnants of undeveloped mountain wilderness left in Georgia.
The most significant river in Appalachia is the Chattooga, the finest wild river in the Southeast. legislation pending in Congress would include the Chattooga in the National Wild and Scenic Rivers Act and provide for public acquisition of the surrounding land to permanently protect the river in its natural state.
Piedmont Region. The Piedmont Region, which includes Atlanta, is the most rapidly urbanizing area in the State. Consequently, many of the region's environmental resources have already been seriously affected by urban growth. However, several durable features have resisted development and are now being preserved: Stone Mountain; Panola Mountain; and Arabia Mountain.
There are a limited number of natural environmental corridors in the Piedmont Region: the Chattahoochee River; the Alcovy River; the Oconee River; the Savannah River; and the Pine Mountain-Flint River complex. The Pine Mountain-Flint River complex is probably the most important natural area of the Region. The western portion of Pine Mountain serves as the backdrop for large-scale recreation developments such as Callaway Gardens and the Franklin D. Roosevelt State Park. The eastern end, where the Flint River cuts through the mountain, contains a unique natural environment called the "bowl", the single largest remaining wetland complex in the Piedmont Region.
The Brevard Fault created the channel for the Chattahoochee River, and in many areas along the river corridor, development has been inhibited by the steep slopes. Efforts are underway by State, local, and Federal governments 'ilnd private enterprise to create conservation zones along the river and promote the acquisition of park sites. It is planned that much of the 48 miles of the Chattahoochee River from
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Buford Dam to Peachtree Creek will be conserved to form the most significant natural resources within the Atlanta Metropolitan area. Below Atlanta much of the Chattahoochee River is too polluted for recreational use. Sweetwater Creek, which has been protected from development by the narrow gorge it occupies has recently been acquired by the State as a park.
Many of the Piedmont's important environmental resources will be significantly altered by proposed developments. Important segments of the Pine Mountain-Flint River are scheduled for inundation by three major Corps of Engineer projects, and a major highway is planned to intersect Pine Mountain. Also, second home development on the mountain is increasing, and the major swamps along the Alcovy are scheduled for channelization.
Coastal Plains Region. In the Coastal Plains Region, the important natural features occur along the principal riverways and along the coast. Because of the generally low topography, the Region is characterized by extremely slow water run-off. This drainage situation creates numerous swamps and reduces the quantity of productive agricultural land in the region. Current programs are designed to improve drainage in order to reduce crop damage and eliminate undesirable tree species, but they also will cause the destruction of excellent wildlife habitats.
The Okefenokee Swamp is one of the three outstanding environmental resources of the Coastal Plain the others are Georgia's Atlantic Coast and the Altamaha River. The Okefenokee is one of the largest swamps in the country, containing approximately 340,800 acres. The swamp is relatively undisturbed, and is one of the unique wilderness areas and prime game habitats in the Nation.
The resources of the Coastal area include the tidal estaurine marshes and barrier islands of Cumberland, Jekyll, St. Simon, Sapelo, St. Caterines, Osabaw, and Skidaway. Several of these islands suffer from overuse and inappropriate use. Others such as Cumberland remain unspoiled. Frequently, developers have removed the protective sand dunes, unnecessarily subjecting the islands to wind and water damage. The destruction of the dunes has disrupted the natural eco-system, and many fine beaches are being destroyed. Industrial and municipal pollution are destroying the estaurine breeding ground of many species of aquatic life, while dredging and filling of marshlands is disrupting tidal action, further endangering the marsh ecology so vital to the Georgia fishing industry.
The Altamaha River supports many unique biotic communities. However, development pressures are increasing, and proposals for navigation in the Altamaha system are being studied. Private developers are considering drainage of important segments of the sw~mps, and unmatched stands of virgin cypress are threatened by private timbering.
The People of Georgia
Population information, including distribution and selected demographic classifications, are presented in this section for the State as a whole, and for the three regions of Georgia: Appalachia, Piedmont, and Coastal Plains (see Map II - 1). An effort has been made to compare State data with available national figures for the past ten to twenty years. At the end of this section, State population projections are presented.
Georgia and the Nation
During the past twenty years, the population of Georgia has grown by 33 percent from 3,445,000 in 1950 to 4,590,000 in 1970. In the decade of the 1950's the State growth rate was 14.5 percent, 4 percent less than the national rate. However, in the 1960's the State growth rate increased to 16 percent, 3 percent greater than the national rate. From 1960 to 1970 the State increased its share of the national population
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from 2.2 percent to 2.3 percent, and consequently moved from the 16th most populous State to the 15th.
Like most of the Nation, Georgia is becoming more urban. In 1950 the State was predominately rural (55 percent), whereas the Nation was 64 percent urban. By 1970 the State had begun to reflect national trends. The Census for that year reported that the Nation was 74 percent urban and Georgia had become 60 percent urban. Most of Georgia's urban population is concentrated in its five metropolitan areas: Atlanta, Savannah, Columbus, Macon, and Augusta (see Map III- 21.
The density of Georgia's population increased 34 percent between 1950 and 1970, a growth rate comparable to national figures. Of the fifty states, Georgia ranks 25th in density and 21st in land area. In comparison to a national density of 57.5 people per square mile, Georgia has 79 people per square mile and the population density for the South Atlantic Region is 115 people per square mile.
The racial composition of the State is running counter to national trends. Between 1960 and 1970 the non-white percentage of the United States population increased by 2 percent, but the non-white percentage of the State population decreased by 2.5 percent. The statewide drop in'the percentage of the non-white population was due to net outmigration; 126,400 non-whites left the State between 1960 and 1970. There was net migration of 207,600 whites into the State. The non-white birth rate is greater than the white birth rate for both Georgia and the United States.
An analysis of the age structure of Georgia indicates that the State is more youthful than the Nation as a whole. The percentage of people fourteen years and younger for the State is 29.9; the corresponding figure for the nation is 28.7 percent. The State has 43 percent of its population in the prime labor force, ages fifteen through fourty-four; in the United States as a whole 41.8 percent of the people are in the prime labor force. At the upper end of the age spectrum, ages forty-five and over, the national percentage is 30.5 as opposed to a State percentage of only 27.1
The Economic Development Regions
Most of the population growth in Georgia during the past twenty years occurred in the Piedmont Region which includes the Atlanta Metropolitan Area. Between 1950 and 1960, population in the Piedmont Region grew 23.8 percent in contrast to growth rates of 9.5 percent in the Coastal Plains and 8.9 percent in Appalachia. Between 1960 and 1970 the Piedmont population increased another 27.2 percent. However, the Appalachian population for the same period increased by 20.5 percent, and the Coastal Plains growth rate was only 5.6 percent. The State increased by 16.3 percent and the Nation increased by 13.0 percent from 1960 to 1970. The Piedmont Region not only has the highest growth rate of the three regions, but is also the most populous with 1,904,000 people, and the most urban with 74 percent of the people in urban areas.
In terms of racial composition, the Coastal Plains Region is 33.1 percent non-white, about 7 percent greater than the State figure and 20.6 percent greater than the national figure. The Piedmont Region is only slightly above the State average in the non-white percentage, and the Appalachian Region, at 8.3 percent, is almost 18 percent below the State figure and about 4 percent below the figure for the Nation as a whole.
Population Projections
In general, during the past twenty years, Georgia has been keeping pace with national population trends. Whether or not Georgia is able to maintain and even improve upon the quality of life in the State depends on future population growth. Dramatic increases in population similar to those experienced in Florida and California could severely tax public resources and destroy many of the desirable aspects of the present environment. While overall population densities in the State are still relatively low and a healthy balance exists between the rural and urban segments of Georgia's society, projections for the future indicate
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this may soon change. The following table points out the challenge facing the State over the next fifty years, and clearly illustrates the need to begin at once formulating a State Policy to guide the anticipated growth and avoid many of the mistakes other states have already made.

TABLE II - 1

1960

1970

GEORGIA POPULATION PROJECTIONS, 1980 - 2020
(in 1000's)

1980

Percent Increase, 19701980

1990

2000

2010

2020

Georgia

3,943

4,590

5,301

Coastal Plains

1,772

1,872

2,007

~

Appalachia

675

814

964

15.5

6,187

7,130

8,291

9,644

7.2

18.5

Piedmont

1,496

1,904

2,330

22.4

---

The Quality Of Life In Georgia This section depicts the quality of life for the citizens of Georgia. Fourteen quality of life components are presented. Data for each indicator are shown for Georgia and for the United States for comparative purposes. The rates of change in the measures over time are used to determine trends in the relative quality of life for Georgians. The quality components and the indicators are patterned after extensive research conducted by the Urban Institute to isolate the components of life quality and a representative indicator for each component. The indicators are only representative and do not purport to fully portray the status of any component. The quality components andthe indicators used to assess the components are shown in Table I. Table II displays the data for Georgia and for the United States for 1966 and 1971. The measures indicate that the quality of life for Georgians in 1971 was better than in 1966 in seven components and worse in seven. An examination of the components reveals that the measures relating to stability of the social order (Social Disintegration, Racial Equality, Public Order, Safety, Mental Health) are those in which the quality of life for Georgia's citizens in 1971 was not as good as in 1966. A comparison of the relative position of Georgia's citizens to that of the average American over the time span covered by the data is presented in Table III. In general, Georgia is improving faster than the United States in those components where massive governmental efforts have been exerted to promote a rapid advance from Georgia's relatively low base; i.e., the economic and health components of the quality of life. Three other components, housing, incidence of poverty and education, where Georgia consistently ranked comparatively low, are not improving but are changing at approximately the national rate. Of critical concern are the six components in which the quality of life for Georgians is declining; these components taken together focus attention upon a need for enhancing the stability of Georgia's social order. A close examination of the factors cited in the declining category leads to the conclusion that the items measured are more in the nature of effects rather than causes of a better quality of life. This conclusion incorporates implications for the State government priorities. A continued large-scale effort in advancing the economic status and health of the citizens of the State coupled with vigorous efforts in education, housing, and the incidence of poverty may well return larger dividends in improving the quality of life than would a broadbased, frontal attack upon the presently declining "effects" components. These implications do not suggest that the declining components are to be ignored, rather that priority of effort (and funds) to improve the quality of life in Georgia logically belong to the cause, not the effect, items.
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.,

TABLE I QUALITY AREAS AND SELECTED INDICATORS

QUALITY COMPONENT
Income Unemployment Poverty Housing Education Health Mental Health Environmental Quality Public Order Traffic Safety Racial Equality Community Concern Citizen Participation
Social Disintegration

INDICATORS USED
Per capita money income Percent of labor force unemployed Percent families with less than $3,000 income
,
Cost of housing for a moderate income family of four Selective service mental test rejection rate Infant (i.e. under one year) deaths per 1,000 live births Suicides per 100,000 population A composite index of air pollutants Reported robberies per 100,000 population Deaths from auto accidents per 100,000 population Ratio between non-white and white unemployment rates Per capita contributions to United Fund appeal Percent of voting-age population that voted in recent Presidential elections Divorce rate per 1,000 population
,

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TABLE II

QUALITY OF LIFE IN GEORGIA AND THE UNITED STATES, 1966 AND 1971

Indicator 1. Per Capita Income ($)

Georgia 2416

1966

U.S. 2987

Ratio GaJU. S. .809

Georgia 3547

1971

U.S. 4139

Ratio Ga./U. S. .857

PERCENT CHANGE, 1966 - 1971

Georgia

U.S.

46.8

38.6

2. Unemployment

Rate (%)

3.4

3.9

.872

4.0

5.9

.678

17.6

51.3

3. Poverty 1

35.6

21.4

1.664

15.0

9.3

1.613

-57.9

-56.5

->
C?

4. Cost of Housing ($)2

1808

2214

.817

2092

2638

.793

15.7

19.1

5. Selective Service Mental Exam Failures (%)

27.9

13.1

2.130

18.1

8.1

2.235

-35.1

-38.2

6. Infant Mortality

Rate (per 1000 live

births)

28.0

23.7

1.181

21.1

19.2

1.099

-24.6

-19.0

7. Suicide Rate (per 100,000 population)

11.2 ..

10.9

1.027

18.6

11.1

1.676

66.1

1.8

TABLE II

QUALITY OF LIFE IN GEORGIA AND THE UNITED STATES, 1966 AND 1971

Indicator 8. Air Pollution 3

Georgia 2.88

1966

U.S. 3.77

Ratio GaJU. S. .764

Georgia 2.60

1971

U.S. 2.91

Ratio GaJU. S. .894

PERCENT CHANGE, 1966 -1971

Georgia

U.S.

-9.7

-22.8

9. Robbery Rate (per

100,000 population)

34.9

78.3

.446

104.2

187.1

.557

198.6

138.9

........

10. Traffic Deaths (per 100,000 population)

35.01

27.07

1.293

40.03

25.53

1.568

14.3

-5.7

11. Ratio Non-white/

white unemployment

Rate' (%)

1.7

2.1

.714

2.0

1.8

1.111

17.6

-14.3

12. United Fund

Contributions per

capita ($)

2.17

3.19

.680

2.95

3.81

.774

35.9

19.4

13. Voting Rate in

Presidential Elections4

(% of registered voters)

'" 44.9

63.0

14. Divorce Rate (per 1000 population)

2.9

2.6

.713 1.115

45.0

61.8 -

4.3

3.7

.728 1.162

'1960 and 1970 Census data rather than 1966 and 1971, as the data are not collected on a State basis except during the Census.

0.7

-1.9

48.3

42.3

-'-

2 Based on Atlanta and United States urban data rather than Georgia and the Nation. 3 Based on National sample and Atlanta sample for 1968 and 1970.

4 1964 and 1968 presidential elections.

TABLE III COMPARATIVE RATE OF CHANGE IN THE QUALITY OF LIFE

RATES OF CHANGE
IMPROVING: Georgia improving faster or declining more slowly than national rate

QUALITY COMPONENT
Income Level Unemployment Health Social Concern

INDICATOR
Per Capita Income Percent Unemployed Infant Mortality Rate United Fund Contributions

I

CONSTANT: Georgia changing at national rate

Housing Education Citizen Participation Poverty

Cost of Housing Draft Rejection Rate Presidential Voting Rate Percent Families with less
than $3,000 income

DECLINING: Georgia declining faster or improving more slowly than national rate

Mental Health Environmental Quality Public Order Traffic Safety Social Disintegration Racial Equality

Suicide Rate Air Pollution Index Robbery Rate Traffic Death Rate Divorce Rate Nonwhite/White
U~employed Rate

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CHAPTER III
PROGRAM GOALS AND ASSESSMENTS
This chapter presents a statement of the goals of the eight major program categories administered by the State of Georgia during F.Y. 1972, and provides a brief assessment of the accomplishments of State programs toward achieving the goals. The major program categories which are discussed are as follows: 1) Education and Intellectual Enrichment; 2)l'hysical and Mental Health; J) Transportation and Communication; 4) Social Development; 5) Economic Development; ~ Protection of Persons and
Property; 71 Natural Environment; and 8) General Government.
This effort marks the first time a general assessment has been attempted for the State programs. It is severely limited in that there is a critical lack of statistical data concerning the accomplishments of the program activities, as well as an overall lack of established criteria that can be used to evaluate accomplishments. It is hoped that this assessment will be an important first step in a continuing assessment process that will lead to the development and refinement of the data and criteria which are needed for effective executive-level program evaluation.
Education and Intellectual Enrichment
The goal for this major program category is the development of the capacity of the individual citizens of the State to function effectively and responsibly in our democratic society. The major program is made up of the following twelve program components: 1) Early Childhood Development; 2) Special and Secondary Education; 3) Vocational Elementary and Secondary Education; 4) General Elementary and Secondary Education; 5) Local School Administration; 6) Adult Education; 7) Compensatory Education; 8) University Instruction and Research; 9) Continuing Education; 10) Student Aid; 11) Technical Support for Local School Systems; and 12) Cultural Enrichment. In the budget for F.Y. 1973, this major program category accounted for 41 percent of the total State expenditures, almost three times the amount of any other major program category.
Early Childhood Development Program
The objective of this program is to provide eligible children and their families with a comprehensive array of services to improve family living and foster the m~ximum capability for self-support and personal independence. Of the 188 public school systems in the State, only 39 have kindergarten programs. However, an additional 46 school systems have been selected to begin pilot preschool education programs for about 9,700 children during the current school year. The State does not presenfty have education standards for private or parochial schools, or for child-care centers established for social service purposes.
Special Elementary and Secondary Education Program
The objective of this program is to provide special instructional programs for mentally handicapped and gifted children of school age. In 1968 the Georgia General Assembly passed a bill mandating school systems in the State to provide education programs for all exceptional children by 1976. These programs presently serve about 43% of the eligible population. More than 50 school systems have submitted approved plans for programs for gifted students. Twelve other systems provide such services as: tuition assistance for over 300 trainable retarded and 23 severely multihandicapped children; special "olympics" for some 8,000 children; 297 classes for over 6,300 educable mentally retarded; three centers for severely emotionally disturbed children age 6-16; a Governor's Honors Program for 400 intellectually gifted and artistically
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talented high-school juniors and seniors; and in-service and summer programs for special education teachers. School services projects are now being established to provide specially qualified teachers; supplementary materials and equipment; differentiated methods of teaching; and other services to schools in sparsely populated areas of the State.
Vocational Elementary and Seoondary Education Program
The objective of this program is to provide instructional programs in vocational fields for eligible children of school age. Of 188 school systems in 1970-1971: 34 (18%) had exploratory, pre-vocational and at least six vocational programs; 77 systems (41%) were planning to interlock their vocational and academic curriculum in one or more vocational areas at the seoondary level; and 36 (19%) planned to have special vocational projects for disadvantaged or handicapped youth. Only 47 high schools will provide oomprehensive vocational training by the end of 1972. Rural areas in the southern part of the State are deficient in adequate facilities, with only 17 located in the Coastal Plains region. Of 19 comprehensive
high schools planned for oonstruction during the next two years, only 5 will be loca,ted in that region.
During the 1970-1971 school year, 10,pilot demonstration centers for comprehensive career development in kindergarten through grade six became operational, and 54 more projects are being readied for implementation in 1973. During the last school year, 35 school systems offering special vocational education programs for disadvantaged and handicapped youth reduced their dropouts by more than 1,000 students from the previous year.
During 1971-1972, an estimated 49% of the students graduating from public high schools completed vocational training programs which provided them with job entry skills. However, only 36 school systems provided organized job placement and follow-up services. Steps are now being taken to provide 18 more with trained counselors and vocational teachers for such services in 1972-1973.
General Elementary and Seoondary Education Program
The objective of this program is to provide instructional programs for eligible children of school age. These programs shall be designed to contribute to the achievement of appropriate performance characteristics. In 1971, a statewide testing program involving some 250,000 students revealed that: Georgia fourth graders are four months behind the national average in basic skills, such as vocabulary, reading, and math; eighth graders are 9.5 months behind the national average; and twelfth graders are six months behind the national average in oomposition, nine months behind in reading and six months behind in math. Results of the testing also revealed extremely wide differences among students in different parts of the State.
Local School Administration Program
The objective of this program is to provide support to local school systems to assist them in effectively providing educational opportunities to students. In general, the objective of this program is far from being met. The Georgia standards for visiting teachers, psychometrists/psychologists, librarians, and guidance counselors are significantly below the national standards, but the school systems in Georgia are not even meeting State norms. In 1971-1972, only 79 of 188 school systems met the State standard for visiting teachers; 84 met the State norm for psychologists; 5 percent of the 1,279 elementary schools provided guidance oounselors.
Adult Education Program
The objective of this program is to provide instructional programs for eligible adults. The overall educational level of adults in Georgia has improved oonsiderably during the past decade, and illiteracy is
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slowly but steadily declining. From 1960 to 1970 the number of adults 25 and older with less than an eighth grade education decreased by 13.5%. The median number of school years completed by whites rose from 10.3 to 11.5 and by non-white:; from 6.1 to 8.0. However, these figures contrast unfavorably with a national median of 12.2 grades. Vocational education activities for adults are attracting more and more students to the State's existing 29 facilities. Twenty-two schools are now operating at capacity or over, and need expanded facilities. The employment rate of vocational-technical school graduates is high, holding at between 95100% during the past several years. In 1971 the "Quick Start" program, in cooperation with 25 new industries in the State, placed 2,000 workers in the labor market, and an additional 6,000 people received training for 60 expanding companies.
Compensatory Education Program
The objective of this program is to provide instructional programs for physically handicapped and institutionalized children of school age. The activities contained in this program (Georgia Academy for the Blind, Georgia School for the Deaf, and Alto Educational and Evaluation Center) may be characterized as effectively accomplishing the objective for the students they are able to accommodate. But, in general, the existing facilities are overcrowded and not able to extend services to all who are in need.
University Instruction and Research Program
The objective of this program is to produce knowledgeable and compotent professional individuals and to provide the knowledge and capability for service which is necessary in a society which is complex and continually changing. The assessment of this program requires a comparison of the production of college graduates by their area of study and the demand for these graduates by society. Such a comparision should focus on those fields in which large numbers of students in Georgia's institutions of public higher education are receiving training and yet little or no current or projected demand exists.
Continuing Education Program
The objective of this program is to maintain the technical and professional expertise of the citizens of the State. In general, three activities are effectively meeting this objective:' the Center for Continuing Education, the Urban life Center, and the Rural Development Center. However, greater utilization of these agencies is impeded because of 1) the lack of public awareness of these agencies and their potential and availability; 2) the inability of citizens and organizations, especially State agencies, to define problems for which specific requests for service can be made; and 3) the inability of the University System to respond rapidly to requests because of prior assignment of personnel to other functions.
The difficulty in assessing the extent to which the objective of the program is being accomplished is compounded by the existing State program structure. Only the above three items are included in this program, although every institution in the University System has a continuing education function from lectures by noted personalities to formalized instruction for the citizens of the area served by the institution. At present, data about the volume and the quality of this service are not available.
Student Aid Program
The objective of this program is to produce an adequate supply of personnel trained in vital professions to serve in areas of the State where the need for such personnel is evident. An additional objective is to improve the opportunities for higher education of financially needy persons who are residents of the State. The Governor's Committee on Student Financial Aid is presently studying this
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program and will have comprehensive recommendations by January 1,1973. Preliminary analysis indicates that the current use of resources to improve the opportunities for higher education of financially needy persons is effective, and that more resources are needed. The evidence concerning activities designed to produce an adequate supply of personnel trained in vital professions, or to produce trained personnel for certain geographical areas, is mixed. Critically needed personnel are being trained, but a large proportion never become employed in the geographical areas where they are most needed.
Technical Support for Local School Systems Program
The objective of this program is to assist local school districts to offer programs of early childhood, elementary, secondary, vocational and adult education which will enable students to attain appropriate performance characteristics. During 1971, there were only 64 of the 188 systems in which every school was rated as standard, although this figure represented an appreciable increase over the 45 systems during the previous year.
Cultural Enrichment Program
The objective of this program is to increase the creative involvement and appreciation of the State's citizens for the visual, performing and literary arts. The major activity, Public Library Services, has made considerable progress since passage of the Library Services and Construction Act of 1963. The number of regional library systems in the State has increased from 14 to 37 in the last eight years. Such regional systems, in turn, have attracted more federal and local money for special multicounty library services such as bookmobiles, data processing; and programs for the elderly, the culturally deprived, and the business communities. However, approximately 12,000 blind and 38,000 handicapped children and adults in Georgia remain in need of special library services. Forty-two of the 52 regional and large county libraries need expansion and improvement of services to meet national requirements and local demands.
Summary
Georgia's educational and cultural institutions have made absolute advances in the recent past. However, by almost any measure, the State is in the bottom group of states educationally. The goal of this major program category is far from attainment.
Physical and Mental Health
The goal for this major program category is to foster a uniformly satisfactory state of health for Georgians through comprehensive health services which are readily accessible to all citizens regardless of geographic location or economic resources. The major program is made up of the following four program components: 1) Medical Care Administration; 2) Health Surveillance and Disease Control; 3) Community Health Services and Facilities; and 4) Mental Health. In the budget for F.Y. 19~3, this major program accounted for 15.1 percent of the total State expenditures, making it the second largest State program category.
Medical Care Administration Program
The objective of this program is to insure that a consistent improvement in the quality of medical care and services available in the State is maintained through fiscal and/or administrative support of those specific facilities and services for which federal/state qualifications are established in law. Progress toward the program objective of improvement in the quality of medical care is difficult to determine, reflecting a general lack of measurement of this factor in the medical practice field as a whole. Medical care is becoming available to an increasing number of indigent persons, as shown by the number of medicaid claims. Progress in improvement of service through consultant services to facilities is indicated by a
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constantly decreasing percentage of deficiencies recorded eacy year. Resource development (i.e., construction of new hospitals) may have reached a point of negative return. The occupancy ratio of existing facilities indicates little need for further c nstruction. Accessibility of care for indigent cancer victims has greatly improved, to the extent that all of the target population currently is being reached.
The crippled children's program is providing care to approximately 55 percent of the target population.
Health Surveillance and Disease Control Program
The objective of this program is to improve the physical health status of all communities and individuals in the State. Performance is uneven across the several activities, and in general, the program objective is not being addressed effectively at present. The target population is not appropriate to the components of maternity home care, family planning and maternal health, and dental health, each of which is aimed at specific segments of the indigent group. The family planning activity is building up rapidly, under recent strong emphasis, and if the increase continues at the current incremental rate of an additional 10 percent of the target group each year, it will reach 100 percent coverage by F.Y. 1979.
The preventive aspect of dental care has been almost totally lacking, and the program through F.Y. 1973 has been very weak and ineffective, both in prevention and care. The record in cerebrovascular and respiratory diseases also needs substantial improvement.
The objective is being met most successfully in the antituberculosis program area and Battey State Hospital. The health program representatives also are particularly effective. Conversely, the venereal disease control component is totally inadequate, as reflected in the incidence rate, the worst in the nation. Both this activity and accident prevention and injury control are major health problems in the 5 to 45 age group.
Community Health Services and Facilities Program
The objective of this program is to assure equitable and adequate distribution and utilization of resources in relation to health needs and the delivery of health services at the community level. The use of grants-in-aid to counties to supplement local resources for health care is not achieving the objective of assuring equitable and adequate distribution of resources at the community level. This failure is due in part to the autonomy of counties in developing programs of health care and in part to the unavailability of local resources or unwillingness to commit them on a matching basis for health services.
Lack of organization of health care resources fostered by the individual county approach has led to grossly unbalanced distribution of facilities and manpower. Utilization also is extremely uneven, with the majority of care being provided to those who are categorically indigent or can afford to buy insurance and who live in areas of adequate resources. A sizeable segment of population i. too poor to pay for health care out of private resources and/or live in areas where services are scarce.
Mental Health Program
The objective of this program is to prevent, treat and rehabilitate mental disability, including mental illness, mental retardation, alcoholism and drug dependency. The degree to which this program currently is meeting its objective is difficult to assess in the absence of quantitative measures of need. National statistics indicate that 10 percent of the population is in need of professional mental health care, and 4 percent is mentally retarded. These data translate into approximately 450,000 and 180,000 people, respectively, in the two categories in Georgia. However, the actual est!9lated need for care in mental retardation centers in the State is for a population of about 12,000. By the start of F.Y. 1974, if present funding continues, 65 centers will serve 50 percent of this target group.
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The census of mental health patients is less well defined since the institution population shifts and is currently diminishing as community services develop. A count of patients served in community programs statewide is not currently avail~ble.
Alcoholism services are provided in only 45 percent of the counties. Actual data on the ratio of patients to population needing this care are not available. Indications are that under half of the total need is being met. Figures on effectiveness of the drug abuse program are similarly lacking, but recent emphasis does indicate progress is being made. As in most other areas of health care, adequate surveys of need are required before progress can realistically be measured.
Transportation and Communication
The goal for this major program category is to develop and maintain a comprehensive transportation and communications network that will enable all Georgians to have safe, efficient, al"d economical access to the activities, services, and facilities within the State and in adjoining states. The major program is made up of the following three components: 1) Highways; 2) Inter-modal Transfer Facilities; and 3) Urban Transportation Systems. In the budget for F.Y. 1973 this major program accounted for 14.7 percent of the total State expenditures, making it the fourth largest State program category.
Highways Program
The objective of this program is to provide an adequate highway system for the safe, efficient, and economical movement of people and goods. Over the years the State has developed an aggressive highway construction program that has, with only negligible exceptions, adequately linked all the cities, towns, and population centers of the State with paved highways. Between 1963 and 1970 the total municipal and rural highway mileage increased from 96,000 miles to 99,000 miles, about 3 percent, while at the same time national highway mileage increased by about 2.7 percent. Major highways in Georgia during that same period increased from 28,700 miles to 29,800 miles, also an increase of 3 percent in seven years. Between 1950 and 1960 disbursements of State highway funds rose from $74 million to $167 million, and in 1970 the figure reached $254 million, an increase of 243 percent. At the same time that highway mileage and expenditures were increasing, motor vehicle registrations grew from 898,000 in 1950 to 2,584,000 in 1970, an increase of 188 percent. During that same period, national registration rose 120 percent.
Georgia's interstate highway system comprises about 1,148 miles of limited access highway. At the present time this system is 70 percent complete with an additional 10 percent under construction. When the total system is completed in 1978, no point in Georgia should be more than 90 miles or about 2 hours
, driving time from a limited access interstate route. Plans presently being prepared for additional limited
access routes in the State will reduce this mileage and driving time considerably.
With very few exceptions, the State highway system provides adequate access throughout the State and the program objective of effectiveness is being met. The exceptions that do appear are for the most part due to extraordinary urban traffic conditions at peak-load hours. These conditions will have to be solved in ways other than by simply building additional highway capacity and, therefore, should not be considered as only highway program issues.
Inter-Modal Transfer Facilities Program
The objective of this program is to provide for the fast, efficient, and safe transfer of goods from one transportation mode to another. The primary non-automobile transportation modes are airlines, railroads, and waterways. There are 150 airports in the State open to the public. Of these, 35 are privately owned and 115 are public. Commercial airlines serve 10 airports located in all key areas of the
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State. During 1970 about 9 million people and 48,000 tons of cargo were accommodated by Georgia facilities, primarily at Atlanta's international airport.
Railroad passenger service in the State is poor, reflecting a national trend away from railroad use by the traveling public. However, Georgia is linked to the nationwide Amtrak system which is trying to regenerate rail passenger travel. Limited interstate connections are available in several of the State's larger cities. While railroads have greatly reduced their passenger business, they continue to playa key role in freight business and in the industrial development of the State. Based on national figures for a one-year period, Georgia's railroads hauled about 19,000 million tons of cargo which generated revenues in excess of $260 million.
The Georgia Ports Authority operates deej:t"water ports at Savannah and Brunswick which, during 1971, handled 2.5 million tons of cargo. In addition, the Authority operates inland terminals at Augusta, Bainbridge, and Columbus which handled 113,000 tons during that same period. Georgia ports connect directly with the Atlantic Ocean and the Gulf of Mexico for overseas shipments, and', by utilizing the intracoastal waterway system, Georgia shipments can be directed to much of the east and east-central United States via water.
Urban Transportation Services Program
The objective of this program is to provide for the fast, economical, and safe movement of people and goods within urban areas. For the most part, this objective is being met. However, public transportation in most urban areas is either non-existent or severely inadequate. The Atlanta metropolitan area has initiated planning and engineering on a public mass transit system designed to meet its projected long-range needs. In the meantime, before that system is completed, the State has authorized the use of sales taxes in the metro area to generate revenues to finance the system, vastly improve present bus service, and reduce fares to a level designed to greatly increased patronage. At this early stage, it appears that revenues are exceeding expectations and passenger use grew about 27 percent in the first quarter of operation with reduced fares.
Social Development
The goal for this major program category is for each Georgian to have the opportunity to attain the fullest possible development of his individual potential for self-fulfillment and achieve a productive and responsible role of participation in society. The major program is made up of the following five program components: 1) Ameliorating Problems of the Aged; 2) Ameliorating Problems of Children; 3) Income Maintenance; 4) Veteran's Services; and 5) Housing. In the budget for F.Y. 1973, this major program accounted for about 15.1 percent of the total State expenditures, making it the third largest State program category.
Ameliorating the Problems of the Aged Program
The objective of this program is to imj.lTove the well-being of the elderly people in the State. In 1970 more than 338,000 people in Georgia were 65 years or older. Over 40 percent of these senior citizens had incomes below the poverty level and only 68 percent received social security payments. Georgia's minimum income standard for an elderly person has been established at $1,380 per year, but the average payment from the State to the aged is less than half that figure, or $658. This payment by the State ranked 48th in the nation in 1971. Obviously, Georgia is not providing adequately for the well being of its senior citizens. Furthermore, it is projected that the total number of elderly citizens will continue to rise in the State for the forseeable future and create increased demand for services from the program.
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Ameliorating the Problems of Children Program
The objectives of this program is to enhance the well being of the children of the State. In 1970, 36 percent of the population of Georgia was 17 years or younger. Based on national averages, it is estimated that 1,600 of these children are full orphans and an additional 53,000 are fatherless. Directly and indirectly, Georgia provided aid to approximately 214,000 children in 1971. The average monthly aid to dependent children amounts to $112, and the average payment to families with dependent children is $28 per person, 43rd in the nation.
Income Maintenance Program
The objective of this program is to assure each individual a level of income which will allow for maintenance of an acceptable standard of living. In recent years social service agencies have been defining poverty in terms of annual family income. The State Department of Human Resources has established $2,724 as a minimum income level in Georgia for a family of four, while the U. S. Office of Economic Opportunity sets the figure at $4,000 for non-farm families and $3,400 for farm fal'flilies. In contrast to these minimum figures, Georgia actually pays $1,790 per year to an indigent family of four. This payment is $934 below its own poverty level and $2,210 below the OEO guideline. According to the 1970 Census, more than 20 percent of the State's population live on incomes below the OEO poverty level, or 192,000 families.
Veterans Services Program
The objective of this program is to advise and assist Georgia veterans, their dependents and survivors, in all matters pertaining to verteran's affairs, and to provide care to disabled Georgia veterans. As of June 1970, Georgia had an estimated 478,000 veterans. During the month of July 1972, the Georgia War Veterans' Home, the only State veterans facility in Georgia, had a resident population of 697 with 119 eligible veterans still in Central State Hospital and an additional 1,505 on leave. A long waiting list currently exists for the War Veterans Home.
As the average age of Georgia veterans is only 44.4 years, it is obvious that the present facility, insufficient to serve the veterans now in need, will become increasingly inadequate as Georgia veterans age and more become in need of assistance. Further, the Vietnam War continues to create additional future burdens for State facilities.
Housing Program
The objective of this program is to provide a decent home and a suitable living environment for every Georgia family. According to the 1970 Census, 13 percent of all housing units in the State are
substandard. Perhaps the best way to view the magnitude of this situation is to ,consider that if 30 percent
of the anticipated new housing starts were for lower income families, it would take at least 10 years merely to replace housing that is already deemed to be substandard. This problem is particularly acute in rural areas. It is estimated that 71 percent of the substandard housing in the State is found in rural areas. At the State level there is no agency with either the authority or the responsibility to effectively meet the housing program objective.
Economic Development
The goal for this major program category is to raise the quality of life for all Georgians to a level comparable or superior to the standard for the Nation as a whole. This goal includes raising the quality of life in the areas of the State which are in a relatively poor economic condition, as well as in those areas which are economically strong. The economic development goal involves efforts in upgrading the economic
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structure of the State, the development of Georgia's communities, and the provision of appropriate choices of jobs across the State so that individuals will be better able to live in the areas they prefer, rather than be forced to live only in major employment centers. The major program is made up of the following five program components: 1) Manpower Development; 2) Promotion of Economic Growth; 3) Science and Technology; 4) Agricultural Industry; and 5) Community Development. In the budget for F.Y. 1973, this major program accounted for 4.9 percent of the total State expenditures, making it the fifth largest State program category.
Manpower Development Program
The objective of this program is to enable the unemployed and underemployed to participate and compete in the labor market. The increase in the labor.force participation rate over the past decade and the generally low level of unemployment indicate that this objective is being approached. For example, the State labor.force participation rate grew from 93.4 percent of the United States rate in 1960 to 98.8 percent in 1970. In the Piedmont Region the participation rate actually exceeded the national rate in 1970 by 3.2 percent. Although the participation rate was increasing, the unemployment ~ate statewide was declining. In 1970 unemployment stood at 3.2 percent in Georgia as compared to a national rate of 4.9 percent.
Promotion of Economic Growth Program
The objective of this program is to increase the State's income and employment to approximate the national average. Per capita income in the State has been steadily advancing. In 1970 it stood at $2,649, a figure which is 83.4 percent of the national income. However, in the Piedmont Region per capita income has risen to almost parity with the national rate (98.4 percent). Georgia's employment rate exceeds the national average, but the distribution of that employment over the State is generally uneven. Between 1960 and 1971 there were new capital expenditures in Georgia amounting to $3,957 million. This was 15.8 percent of the total national investment for that same period, an extremely generous share of the country's growth during the decade of the 60's. The tourist industry also experienced rapid growth during the 60's. Travel expenditures increased by 157 percent between 1960 and 1970, while the number of tourist businesses increased by 28.7 percent, and tourist-related employment increased by more than 74 percent.
Science and Technology Program
The objective of this program is to strengthen the scientific, technical, and industrial base of the State. Progress toward meeting this objective can be measured by the employment of scientific and technical personnel in Georgia. With 2.3 percent of the national population, Georgia could theoretically be expected to employ about, 2.3 percent of the scientists and technicians. However, in only one category, agricultural sciences, does the State surpass 2.3 percent. In the other categories of technical skills, Georgia falls far below the national ratio. This inadequacy is especially pronouced in the categories where the technical skills,are the more highly paid. Quite clearly, this program is not yet adequately meeting its objective.
Agricultural Industry Program
The objective of this program is to increase the productivity and income of the State's agricultural industry. Although the agricultural industry in Georgia has declined sharply as a relative source of employment and income, the absolute values of agricultural products continue to rise. For example, in 1971 agricultural production topped $572 million, a 19..percent increase over 1970. This was the highest value ever recorded for Georgia production. The peanut crop has the greatest value and accounts for 30 percent of total production income. Corn is the second most important crop and tobacco ranks third. However, tobacco suffered a drop of more than $11 million in value in 1971. On the whoI"!, yields per acre increased for all crops in 1971 from the 1970 yield, reflecting a substantial increase in statewide
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agricultural productivity.
Community Development Program
The objective of this program is to improve the economic viability of the underdeveloped areas of the State. An analysis of the economic conditions in the State indicates that severely depressed areas still exist and little progress in improving their economic viability is apparent. Median family income for the State in 1970 was $8,167, about $1,300 less than the national figure. However, sixteen of the eighteen Area Planning and Development Commissions showed a median income below the State figure, and only one, the Atlanta Region, surpassed the national figure. Rural areas were substantially below the State median income level. According to 1970 Census figures, 16.7 percent of the families in the State live with a poverty income. However, in thirteen of the eighteen APDC districts, 17 percent or more of the families have poverty incomes, and in some instances the poverty level exceeds 30 percent. Again, the highly urbanized Atlanta area is the major exception to the general poverty conditions existing throughout Georgia.
Protection of Persons and Property
The goal for this major program category is to protect the people of the State and their property from criminal acts, natural disasters, and institutional abuses. Three major efforts are implied in this goal. One is improvement in the efficiency of law enforcement and criminal justice systems. Another is improvement in relations between law enforcement officers and members of the community. This process of improvement includes training and upgrading peace officers, judicial reform, effective correction and rehabilitation programs, and increased police-community cooperation. The third area of effort is improved protection of the Georgia consumer. It includes prevention and remedy of unfair trade and credit practices, improved equalization of public services, and increased visibility of consumer abuses by public service institutions.
The major program is made up of the following ten program components: 1) Crime Prevention and Control; 2) Juvenile Delinquency Prevention and Control; 3) Rehabilitation of Offenders; 4) Judicial; 5) Highway Safety; 6) Fire Protection; 7) Disasters; 8) Occupational Health and Safety; 9) Business Practices; and 10) Product Quality. In the budget for F.Y. 1973, this major program accounted for only 4.4 percent of the total State expenditures, making it the sixth largest State program category.
Crime Prevention and Control Program
The objective of this program is to detect, deter, or prevent criminal acts throughout the State and to apprehend and prosecute persons responsible for criminal activities. Indicators used to assess the accomplishments of this program include the number of serious crimes committed (as defined by the U. S. Department of Justice), urban-rural crime rates and the number of individcJals committed to the Georgia correctional system as a result of serious crimes. A comparison of Georgia with other states as to the serious crimes of murder and aggravated assault reveals that Georgia exceeds the national average (2,740.5 per 100,000 total population), and forcible rape, robbery, burglary, larceny and auto theft rates are rapidly increasing. In the metropolitan areas, the crime rate is significantly higher than in other areas of the State. Of the State's total population, 48.1% reside within the six largest metropolitan areas, but they accounted for 69.8% of the State's serious crimes. Some rural areas showed a high increase in their crime rates, but the probability of a particular crime being committed in a rural area is significantly less than it would be in a larger metropolitan area.
During FY 1971, a total of 4,301 persons (94 per 100,000 total population) were convicted of felonies and committed to the custody of the State Board of Corrections. A total of 1385 persons (30 per 100,000 total population) were convicted of misdemeanors and subsequently committed. These
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figures represent a 13 percent increase in committed felons and an 0.8 percent decrease in committed misdemeanors over the preceding fiscal year.
Juvenile Delinquency Prevention and Control Program
The objective of this program is to reduce the incidence of juvenile delinquency and rehabilitate youthful offenders. An assessment of this program has been provided in Georgia's Comprehensive Law Enforcement Plan for 1972. In Georgia, as throughout the nation, the number and types of juvenile cases disposed of by the courts shows an increase in the total. The greatest number of juvenile crimes occurred in the urban areas. Georgia's nine most urban counties handled 62.7 percent of all the juvenile cases.
Rehabilitation of Offenders Program
The objective of this program is to reduce the recurrence of criminal behavior and to enable offenders to function as useful productive members of society. From available data, a dramatic increase is evident in recent years in the proportion of felons convicted who have experienced a previous conviction. While the number of first offenders has increased, the fraction of total convictions of first offenders has decreased from 75 percent to about 60 percent. Although only a small number of prisoners have taken part in the Work Release Program, the results to date indicate a degree of success. This program is intended to prepare prisoners to effectively enter society upon release from cu~ody.
Judicial Program
The objective of this program is the provision of judicial processes which insure an effective, equal, and efficient system of justice. This objective is not being met according to a recent assessment of the program contained in the Report of the Governor's Commission on Judicial Processes.
Highway Safety Program
The objective of this program is to decrease the deaths, injuries and property damage caused by automotive accidents. In 1971 Georgia reported 130,595 automobile accidents, 34,111 injuries from accidents, 1,814 deaths, and $365,740,000 in economic losses. While the number of accidents increased both in 1970 and in 1971 (reflecting an increase in motor vehicles), economic damages were down in both years indicating that the program is making progress toward accomplishing its objective.
Fire Protection Program
The objective of this program is the elimination of loss of life, property and personal injury due to fires. One indicator of fire losses is the amount of damage claimed for purposes of insurance compensation. In 1970, fire and casualty insurance companies paid $26.9 million to Georgia businesses and $1.9 million to Georgians for domestic losses due to fires.
Disasters Program
The objective of this program is the minimization of personal injury, and loss of life and property resulting from natural and man-made disasters, conflagration and civil disorders. No data are currently available as to the effectiveness of this program. Pointing toward a more efficient and effective operation, the Department of Civil Defense is currently engaging in the following activities:
Extension of its radio communication center to 24-hour service.
Publication of emergency phone numbers and distribution to local units
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Preparation of computer information service showing location and capability of all local rescue equipment.
Rewriting the Civil Defense Act to cover emergencies due to civil disorders and natural disasters.
Occupational Health and Safety Program
The objective of this program is to reduce the incidence of accidents and illnesses and resulting injuries, deaths, and disabilities which occur in occupational situations. Occupational accidents reported for workman's compensation during 1971 amounted to 160,450, an increase from the 154,383 reported the previous year. These figures, however, serve to point out the emphasis of the existing programs on remedial aid rather than a preventive approach to industrial health and safety. Furthermore, the benefits offered in the event of accidents are relatively limited. Only two states make lower payments than Georgia.
Business Practices and Product Quality Programs
The objective of the business practices program is to protect the consumer from financial loss due to unfair or fraudulent business practices. The activities of regulation, investigation, and licensing are performed to prevent illegal or unfair business practices.
The objective of the product quality program is to protect the consumer from unsafe or unhealthy products. In the Atlanta area, approximately 300 complaints per week are handled by the Better Business Bureau, of which they estimate 10 percent are clear violations of law and another 15 percent are problems which can be settled by mutual arbitration.
The Georgia Consumer Services Program handles consumer complaints via a statewide WATS line. During the first eight months of 1972, they handled 5,493 cases dealing with consumer problems. These cases include those in which advice is given, as well as instances where follow-up action is required. No data is given regarding cases of product or service quality.
The Georgia Indigent legal Services reports that 6,000 cases were taken during the first six months of 1972, reflecting the use of the operation in consumer protection.
Natural Environment
The goal for this major program category is to protect and conserve the natural resources of the State and provide all Georgians with an adequate opportunity for access to public open space and outdoor recreation facilities suited to their individual needs. The major program is made up of the following five program components: 1) Recreational Opportunities; 2) Preservation of Natural Areas; 3) Preservation of land Resources; 4) Preservation of Water Resources; and 5) Preservation of Air Quality. In the budget for F.Y. 1973, this major program accounted for only 2 percent of the total State expenditures, making it the lowest funded program category of the eight major programs.
Recreational Opportunities Program
The objective of this program is to insure the availability and accessibility of an adequate variety
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r

of recreational opportunities. The major components of recreation provided by the State include develop-

ment and operation of State parks an d fish and game management. During the last five years visitations to

Georgia's parks have increased from an estimated 6,771,000 in F.Y. 1968 to 9,109,000 in F.Y. 1972, an

increase of nearly 35 percent over five years. Sales of hunting and fishing licenses increased by 11 percent

during the period 1967-71, and for the 1970-71 ~son nearly a million licenses were issued. At the

fifteen historic sites operated by the State Historic Commission, annual attendance has increased more than

threefold over the last five years, to an estimated 317,000 for 1972. A Statewide Outdoor Recreation

Plan (SCORP) has been prepared to guide acquisition and development allocations through the year 1985.

Preservation of Natural Areas Program

The objective of this program is to preserve the scenic, aesthetic, recreational, and ecological value of the natural areas of the State. The 1970 Coastal Marshland Protection Act enabled the Department of Natural Resources to regulate dredging and filling of the marshland. The State has experienced problems in enforcing this Act due to the size of the area involved and the difficulty in definil'g the areas encompassed by marshlands. Georgia also has enacted the Scenic Rivers and Natural Areas Acts which provide for identification or registration of these areas, but which lack any measures for protection. The Governor has recently launched the Georgia Heritage Trust Program which is intended to catalog endangered environmental, recreational, and historical areas for State acquisition on a priority basis.

Preservation of Land Resources

The objective of this program is to insure the proper utilization of forest, mineral, and petroleum resources so as to obtain the optimal benefits for the citizen of Georgia and to minimize the destruction of land. The disposal of solid waste directly affects the quality of the State's land resources. In FY 1972, only 11 percent of the community disposal sites and only one percent of the industrial disposal sites in the State were approved by the Environmental Protection Division as meeting State standards. Virtually all mining in Georgia is done by surface mining. The Surface Mine land Use Board provides annually for the reclamation of approximately 3,300 acres of lands affected by surface mining. The State still, however, has over 30,000 acres of land which was mined prior to enaction of the reclamation legislation. Protection and improvement of 24 million acres of forest resources in the State is a responsibility primarily of the Georgia Forestry Commission. During F.Y. 1972,525,000 acres of forest land were included in management plans prepared by the Commission. In addition to assisting 3,600 forest land owners, the Commission also suppressed approximately 14,000 fires protecting a possible loss of 1,250,000 acres.

Preservation of Water Resources

The objectives of this program are to insure the maintenance of an adequate supply of water for the citizens of Georgia, to maintain a reasonable degree of purity of the waters, and to prevent and control water pollution. Approximately 3,710 river miles (86 percent of the total) met State water quality standards during F.Y. 1972. Major surface water pollution still exists downstream from most urban and industrial centers. Available data indicates that in March 1971 adequate treatment was given to 165 million gallons per day of wastewater from cities and counties. The remaining 200 million gallons of wastewater per day received inadequate treatment. Twenty-nine percent of Georgia's population is served by adequate sewage treatment, 25 percent is served by inadequate public sewage treatment, and 46 percent is served by undesirable or inadequate individual disposal systems like septic tanks and privies. Substantially all major city and county wastewater discharges in the State are scheduled to receive adequate treatment by the middle of 1973. Current data shows that 25 percent of Georgia's wastewater producing industries now comply with State requirements, 20 percent are not in compliance and 21 percent are under conditional operation. Sixty-six percent of the total number of industries discharging wastewater in the State have either completed adequate treatment facilities or now have them under construction. It is estimated that 65 percent

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of the population of Georgia is served by public water supplies, the balance is being provided by privately operated systems. Almost 96 percent of the public systems are approved as meeting State standards.
Preservation of Air Quality
The objective of this program is to insure the quality of the air, and to minimize the adverse affects of air pollution upon the health of individuals and upon their property. Of the three major forms of air pollution currently monitored by the Air Quality Control Division, particulates appear to be the most widespread and extensive problem. Levels of sulphur dioxide are well below standard maximums in all parts of the State. Similarly, nitrogen dioxide levels are below standards in all but the Atlanta area. Readings for both sulphur dioxide and nitrogen dioxide also show a downward trend from 1968-70. Three-year trends in levels of particulates show substantial improvement in all areas of the State except Atlanta and Rome.
General Government
The overall Goal of State Government in Georgia is to provide all Georgian, with the opportunity for the fulfillment of their present and future needs. Accordingly, the goal of this major program category is to provide all operating agencies of State government with the leadership and support services necessary to help them achieve the overall State Goal. The major program is made up of the following eight program components: 11 Fiscal Administration; 21 Revenue Collection; 31 Personnel Management; 41 Informational Services; 51 Properties and Supplies; 61 Executive Direction and Support; 7) Legal Services; and 8) Local Governments. In the budget for F.Y. 1973, this major program accounted for 2.8 percent of the total State expenditures, making it the second lowest funded State program category.
Fiscal Administration Program
The objective of the fiscal administration program is to provide for the sound programming and management of the State's revenues. As a result of the State reorganization effort, the responsibility for financial programming and management was centralized, allowing for a more efficient use of State funds. It is estimated that since May 1972 this program has brought about an increased yield to the State of over $750,000.00.
Revenue Collection Program
The objective of this program is to effectively and impartially administer the tax laws and collect the money due the State at the least possible administrative cost. The tax laws have been changed to require reporting of sales tax and employee withholding on a semi-monthly rather than monthly basis. By spreading the workload and generating more regular and frequent reports, this change has brought the State about $16 million in increased "windfall" revenues. A new personal income tax report form, based on the federal form, was used for 1971 reports. This form is easier to process and cross-check, end simplifies the filing procedure for the taxpayer. An undetermined but substantial savings for both the State and the taxpayers has been realized.
Personnel Management Program
The objective of this program is to provide for the efficient utilization of the manpower resources of State Government. The effect of the reorganization on personnel in State Government is illustrated in the following table.
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,

Positions in State Government

F.X 1971

F.Y.1972

Total Positions

52,538

54,872 (+2,354)

Total Positions, Excluding Regents

37,537

38,457 (+ 920)

*Governor's Recommendation

F.Y.1973* 53,595 (-1,277) 36,880 (-1,577)

Information Services Program

The objective of this program is to provide information to both the State Government and to the general public. State agency computers and information systems have been consolidated, making it possible to provide a more efficient and coordinated flow of information both within and outside the State Government. One of the key aspects of this program is increasing the public's access to and understanding of State Government. The "Goals for Georgia" effort brought thousands of Georgians into direct involvement in State Government. Reorganization reduced the number of agencies from about 300 to 22, thereby streamlining the governmental structure and making it easier to be understood and utilized by the general public. The local government study effort is expanding the "Goals for Georgia" process and will bring the State Government into even closer contact with local communities.

Properties and Supplies Program

The objective of this program is to provide for the efficient management of State properties, supplies, and related services. Throu!tl reorganization, services such as the motor pool and purchasing have been consolidated. There is presently no accurate estimate of the savings brought about by these changes, but it is expected to be substantial.

Executive Direction and Support Program

The objective of this program is to provide leadenhip and direction in the activities of the

executive branch of State Government, as well as provide the executive branch with the staff support necessary

to perform its duties. Evidence of the effectiveness of this program is the successful reorganization of State

Government, the initiation of the "Goals for Georgia" process, the statewide study of local governments, and

the change to a zero-base budget process for all State activities. To assure that these innovations are not "one-

shot" efforts, the Office of Planning and Budget has been charged with the responsibility to see that these

processes are continued and improved.

'

Legal Services Program

The objective of this program is to provide legal services to State agencies in support of their activities and functions. This program is almost entirely a staff support service, and effective assessment is difficult. No major changes were brought about by the reorganization of State Government.

Local Governments Program

The objective of this program is to improve the effectiveness and efficiency of local governments to deliver services to the citizens. A major study is presently underway to determine how this objective might

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,

,\

POPULATION DISTRIBUTION In

GEORGIA 1970

URBAN:
500.000 155.000 120.000 73.000 60.000

10.000-50.000 5000-9999 1500-4999

1000-2499
EACH DOT REPRESE TS 400 J HABITANTS



Cartography by
David C. Mowbray Borden D. Dent
GEORGIA !>TATE lJ IVERSITY DEPARTMENT of GEOGRAPHY, CARTOGRAPHY LABORATORY

- - - - - o

50 mil..

SOURCE: 1970 U.S. CENSl'S

best be accomplished. The scope of this study is as follows: 1) To examine and evaluate the delivery of services being provided by State and local governments and to make recommendations for providing our citizens with maximum services at minimum cost; 2) To examine and evaluate financial resources available to State and local governments and to make recommendations to assure that these resources are allocated in such a manner that all citizens and communities in the State receive their equitable share of services provided; 3) To examine and evaluate the State and local government revenue base and to make recommendations for a balanced and equitable tax structure; 4) To examine and evaluate technical assistance needs for local government bodies within the State and to determine how and in what manner this assistance should be provided; and 5) To make recommendations, including suggested legislation, to be considered as a result of these evaluations, for the overall coordination and improvement of State-local government service relationships.
Summary The major program category of General Government has been significantly affected by State
reorganization. Of the eight programs which were assessed, six experienced major changes and substantial savings in governmental operations were realized.
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CHAPTER IV
STATE DEVElOPMENT POLICIES
The purpose of this chapter is to present a summary of executive policy designed to guide the development activities of the State of Georgia. These policy statements were developed in accordance with the results of the "Goals for Georgia" process, and on the basis of an analysis of the economic, physical, and social condition of the people and the environment of the State, as well as an assessment of the current direction and thrust of the State's resources and program activities. The policies listed below are written to guide the State's activities in the years ahead, but particular emphasis on the next biennium is evident in the listing of specific actions necessary to implement the policies.
Education and Intellectual Enrichment
1. That the State will provide equal opportunity for all children aged one through five to attain a stage of physical, mental and social development which will prepare them for satisfactory scholastic achievement upon entry into the elementary school systems as rapidly as possible. First priority will be given to alleviating afflictions discerned through a statewide program of examination and testing.
Implementation Actions a) Establish a statewide early childhood development program. b) Expand day care centers. c) Devise and adopt minimum standards for day care centers and kindergartens.
2. That every individual be provided with opportunities for learning experiences which will enable him to achieve his potential as a self-supporting, responsible and contributing member of society.
Implementation Actions
a) Maintain and utilize a statewide testing program in the third, seventh, and eleventh year of
school to determine students' achievements and interests in order to assist in planning their high school, vocational, and college curricula. b) Provide job placement, career, and personal counseling in all school systems. c) Explore the potential for, and implement if feasible, a lyceum system to provide cultural advantages to all areas of the State. d) Expand and strengthen the regional library network to provide an accredited library within commuting distance of all Georgians. e) Establish regional cultural centers.
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3. That the State's educational system assign priority to programs to reduce functional illiteracy. Implementation Actions
a) Provide for basic adult education within commuting distance of every Georgian. b) Provide remedial reading instruction in Georgia's elementary schools to guarantee that, if
humanly possible, no child reaches the fourth grade without being able to read and write.
4. That elementary, secondary and post-secondary educational services, including all aspects of vocational education and training, be provided by the State according to a unified, comprehensive and coherent State Plan for Education.
Implementation Action Develop legislation to provide for a comprehensive state plan for educational improvement.
5. That the State's educational systems will determine and report program results to the general public in terms of the impact of these programs on student performance in relationship to their cost and resource expenditures.
Implementation Action Develop a procedure for requiring that the State Board of Education, local boards of education, and the Board of Regents, be held accountable for achieving established educational goals and objectives and for reporting to the public the extent to which the goals and objectives are met in relation to public funds expended.
Policies 6. That comprehensive manpower development programs will be accessible and responsive to all citizens in need, and that skill training will be offered that corresponds to the identified and projected employment opportunities within commuting range of the residence of the trainees. 7. That State Government programs will assign priority to the determination and implementation of career-ladder employment opportunities.
Implementation Actions a) Establish a program of student financial aid so that any high school graduate capable of postsecondary schooling, either in a college or vocational school, will not be denied this opportunity because of lack of financial support. b) Develop legislation to allow the State to provide tuition grants for eligible students attending private colleges.
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ECONOMIC DEVELOPMENT REGIONS IN GEORGIA
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c) Establish a new relationship between public and private colleges, and a closer coordination between higher and secondary education.
d) Expand the State's system of comprehensive vocational high schools until a school is located within commuting distance of all Georgians.
e) Expand the comprehensive student intern program.
8. That rapid and constant improvement in the overall quality of the educational system shall be of high priority.
Implementation Actions a) Reduce the percentage of the required local effort for public school financing. b) Expand the Minimum Foundation Program for Education to assure that all Georgia students will have the same educational opportunities regardless of where they live. c) Expand the use of "shared services" among school systems. d) Continue to increase teachers' salaries and those of other supportive personnel. e) Develop legislation regarding tenure for public school teachers and a system for evaluation of teachers. f) Expand the University System as rapidly as possible consistent with insuring equality of quality higher education in all parts of Georgia. g) Encourage the adoption of minimum standards for private schools. Human Development
9. That efficient and comprehensive health, social, welfare and rehabilitative services be accessible and responsive to all citizens in need within their own community.
Implementation Actions a) Develop a service delivery system at the area, community, and outreach levels to provide ready accessabil ity. b) Allow the State to assume the full burden of financing the local share of the welfare program. c) Train sufficient manpower as mid-level administrators in the health and social services delivery system to conserve scarce professional manpower and provide a career and salary structure sufficient to attract and retain this trained manpower. d) Certify paraprofessionals to help supply medical and dental services in areas with a shortage of doctors and dentists.
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10. That health, social, welfare and rehabilitative services will be provided by the State according to adopted minimum standards governing their quality and accessibility.
Implementation Actions a) Devise a Minimum Foundations Program for human needs. b) Provide comprehensive services to persons afflicted by mental retardation and other developmental disabilities. c) Establish a human development information system with components providing specific data on health and social needs and resources.
11. That special emphasis be given to provision of immediate health care needs until the causes of the problems can be addressed through 10nlJ"f'ange planning and action.
Implementation Actions a) Establish a statewide program for prevention and control of drug abuse. b) Provide for the treatment of venereal disease to reduce its incidence and halt its spread. c) Create a State Office of Dental Health and a comprehensive program of preventative and restorative care. d) Establish a statewide program for the prevention and control of alcoholism. e) Provide for an informational campaign on drugs, venereal disease, alcoholism, nutrition, and family planning through the educational institutions of the State. f) Implement the State's Emergency Health Care Plan.
12. That additional opportunities for attractive, safe, and sanitary housing with a diversity of choice be provided to all Georgians with particular emphasis to those citizens with low and moderate incomes.
Implementation Actions a) Develop legislation for a statewide standard building code. b) Develop means for implementation of fair housing legislation. c) Implement the spirit and intent of HB No. 1245 which created the Georgia Development Authority for Housing Finance.
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Transportation and Communications
13. To provide a transportation system which combines various modes, including land, air, rail, and water vehicles; for optimal service to the citizens of the State with special attention to the needs of the poor, young, aged, and handicapped.
Implementation Actions a) Insure that transportation planning is coordinated with economic, environmental, and human development considerations. b) Expand long-range transportation planning to assure building highways where needed, and to coordinate highway planning with other transportation modes planning. c) Build a system of pay-as-you-go tollways to facilitate the development of expressways in key areas of Georgia. d) Expand the highway safety program to reduce the number of accidents, deaths, and injuries.
14. That every Georgian is entitled to free and open communications and news. Implementation Actions
a) Institute an experimental telecommunications system. b) Encourage the expansion of cable television.
Economic Development
15. That public investment decisions shall be based upon State and area plans and programs reflecting the needs, priorities, and net benefits to Georgians.
Implementation Actions a) Establish a system of State economic indicators to monitor the performance of the Georgia economy. b) Strengthen coordination between and among State agencies, APDC's, local planning commissions, and private sector planners.
16. To afford viable choices of living patterns by promoting balanced living advantages in both the rural and urban areas of State.
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Implementation Actions a) Disperse economic growth over the State by comprehensive economic planning and selective industry solicitation. b) Enhance the agricultural sector by actively promoting the location of farm product processing industries. c) Encourage the development by the private sector of "New Communities" as 1) satellite communities which offer an alternative to urban sprawl, 2) "new towns-in-town" as an approach to redevelopment of deteriorating central city areas of the State, and 3) new communities utilizing existing settlements as a nucleus for expansion. Protection of Persons and Property
17. To provide and maintain an increasingly equitable and efficient criminal justice system. Implementation Actions
a) Provide convicted felons with diagnostic services prior to sentencing and offer rehabilitative services during their term of confinement, including training in marketable skills and assistance in obtaining employment upon release.
b) Professionalize the Department of Investigation (001) through higher standards and intensive training.
c) Assure better training and higher pay for peace officers to upgrade the quality of law enforcement.
d) Create a nonpartisan commission with power to investigate complaints about the judicial system and recommend appropriate action.
e) Hold parole hearings at the detention facilities and give inmates information as to their status. f) Consolidate and systematize statewide criminal information and make it available to law
enforcement officers anywhere in Georgia as needed. g) Modernize Georgia's judicial system by removing politics as a factor in the selection of State
judges and by overhauling judicial administration.
18. That Georgia consumers be protected from unfair trade and credit practices and unsafe and harmful products.
Implementation Actions a) Develop strong consumer protection legislation. b) Establish a State Consumer Advisory Committee to provide a channel of communications for consumer complaints.
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Natural Environment
19. That areas of critical concern to the State - including significant natural, ecological and cultural environments, developments of regional significance and developments that affect major State investments -- be identified, and that appropriate means of assuring their regulation and use be devised.
Implementation Actions a) Preserve Georgia's many valuable environmental, recreational, and historical areas by a combined program of State acquisition and increased protective authority. b) Propose legislation to strengthen Georgia's laws controlling air, land, and water quality. c) Remove unsightly billboards and signs along the highways. d) Encourage local communities to beautify their surroundings. e) Devise means to deal with noise pollution in urban areas. General Government
20. That economy in the operation of State government be pursued. Implementation Actions
a) Avoid imposing unnecessary tax increases by holding expenditures within the current resource limits provided by added tax receipts, cost savings and avoidance resulting from reorganization, and by Federal revenue sharing.
b) Employ the unexpended debt capacity of the State only for essential capital items called for by improvements in, acceleration of, or additional service programs.
c) Continue to study and improve the organization of the executive branch of State Government. d) Institute a system to continuously monitor the effectiveness and efficiency of State Government
operations.
21. That assistance be provided Georgia's local governments in improving their capability to evaluate existing and future needs of their citizens and deliver services to meet these needs.
Implementation Actions a) Equalize property tax assessments to insure a fair and equitable tax system for all taxpayers. b) Strengthen local units of government by implementing the recommendations of the Local Government Study team.
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