Annexation policy in milwaukee: An historical institutionalist approach

Polity

Volumn 39, Issue 1, 2007, Pages 55-78

  Rast, Joel ^a  

^a UNIVERSITY OF WISCONSIN MILWAUKEE   (United States)

Author keywords

Annexation; Historical institutionalism; Milwaukee; Regime theory

Indexed keywords

EID: 33846358435     PISSN: 00323497     EISSN: 17441684     Source Type: Journal    
DOI: 10.1057/palgrave.polity.2300079     Document Type: Article

References (132)

1. R. D. Norton, City Life-Cycles and American Urban Policy (New York: Academic Press, 1979).
2. Stephen L. Elkin, City and Regime in the American Republic (Chicago: University of Chicago Press, 1987);
3. Clarence N. Stone, Regime Politics: Governing Atlanta, 1946-1988 (Lawrence: University Press of Kansas, 1989).
4. The weakness of city government has long been a starting point for studies of urban politics. The U.S. Constitution makes no reference to cities, and the powers of local government are understood to include only those granted to them by the states. Cities are limited in their ability to regulate private investment, to control land use, to operate commercial enterprises, to raise revenues, and to expand their territory. See Elkin, City and Regime In the American Republic, 18-21.
5. Stone, Regime Politics;
6. Clarence Stone and Heywood T. Sanders, eds., The Politics of Urban Development (Lawrence: University Press of Kansas, 1987);
7. Gregory D. Squires, ed., Unequal Partnerships: The Political Economy of Urban Redevelopment in Postwar America (New Brunswick, NJ: Rutgers University Press, 1989);
8. Bryan D. Jones and Lynn W. Bachelor, The Sustaining Hand: Community Leadership and Corporate Power (Lawrence: University Press of Kansas, 1986).
9. See James G. March and Johan R Olsen, "The New Institutionalism: Organizational Factors in Political Life," American Political Science Review 78 (1984): 734-49;
10. Gabriel A. Almond, "The Return to the State," American Political Science Review 82 (1988): 853-74;
11. David Brian Robertson, "The Return to History and the New Institutionalism in American Poltical Science," Social Science History 17 (1993): 1-36;
12. Ellen M. Immergut, "The Theoretical Core of the New Institutionalism," Politics & Society 26 (1998): 5-34;
13. Ira Katznelson, "The State to the Rescue? Political Science and History Reconnect," Social Research 59 (1992): 719-38;
14. Peter A. Hall and Rosemary C.R. Taylor, "Political Science and the Three New Institutionalisms," Political Studies 44 (1996): 936-57.
15. See, for example, Stephen Skowronek, Building a New American State: The Expansion of National Administrative Capacities, 1877-1920 (Cambridge: Cambridge University Press, 1982);
16. Theda Skocpol, Protecting Soldiers and Mothers: The Political Origins of Social Policy in the United States (Cambridge: Harvard University Press, 1992);
17. Karen Orren, Belated Feudalism: Labor, the Law, and Liberal Development in the United States (Cambridge: Cambridge University Press, 1991);
18. Richard E Bensel, Yankee Leviathan: The Origins of the American State, 1857-1877 (New York: Cambridge University Press, 1990);
19. Elizabeth Sanders, Roots of Reform: Farmers, Workers, and the American State, 1877-1917 (Chicago: University of Chicago Press, 1999);
20. Gerald Berk, Alternative Tracks: The Constitution of American Industrial Order, 1865-1917 (Baltimore: Johns Hopkins University Press, 1994);
21. Daniel P. Carpenter, The Fbrging of Bureaucratic Autonomy: Networks, Reputations, and Policy Innovation in Executive Agencies, 1862-1928 (Princeton: Princeton University Press, 2001).
22. Paul Pierson and Theda Skocpol, "Historical Institutionalism in Contemporary Political Science," in Political Science: The State of the Discipline, ed. Ira Katznelson and Helen V. Milner (New York: W. W. Norton & Company 2002): 696-97.
23. See Kenneth Finegold and Theda Skocpol, State and Party in America's New Deal (Madison: University of Wisconsin Press, 1995);
24. Margaret Weir and Theda Skocpol, "State Structures and Possibilities for 'Keynesian' Responses to the Great Depression in Sweden, Britain, and the United States," in Bringing the State Back In, ed. Peter B. Evans, Dietrich Rueschemeyer, and Theda Skocpol (Cambridge: Cambridge University Press, 1985): 107-63;
25. Gregory Hooks, "From an Autonomous to a Captured State Agency: The Decline of the New Deal in Agriculture," American Sociological Review 55 (1990): 29-43;
26. Christopher McGrory Klyza, "A Window of Autonomy: State Autonomy and the Forest Service in the Early 1900s," Polity 25 (1992): 173-196;
27. Carpenter, The fbrging of Bureaucratic Autonomy.
28. Theda Skocpol, "Bringing the State Back In: Strategies of Analysis in Current Research," in Bringing the State Back In, 9.
29. Klyza, "A Window of Autonomy."
30. Carpenter, The Forging of Bureaucratic Autonomy, Klyza, "A Window of Autonomy?
31. My use of the term "capacity" extends to both material and institutional resources that empower government officials. Historical institutionalists emphasize the latter.
32. Skocpol, Protecting Soldiers and Mothers, 42.
33. See Theda Skocpol and Kenneth Finegold, "State Capacity and Economic Intervention in the Early New Deal," Political Science Quarterly 97 (1982): 255-78;
34. Skocpol, "Bringing the State Back In"; Stephen D. Krasner, Defending the National Interest: Raw Materials Investments and US. Foreign Policy (Princeton: Princeton University Press, 1978);
35. Klyza, "A Window of Autonomy".
36. Carpenter, The Forging of Bureaucratic Autonomy.
37. Kenneth Finegold and Theda Skocpol, "State, Party, and Industry: From Business Recovery to the Wagner Act in America's New Deal," in Statemaking and Social Movements: Essays in History and Theory, ed. Charles Bright and Susan Harding (Ann Arbor: University of Michigan Press, 1984): 159-92.
38. E. E. Schattschneider, Politics, Pressures and the Tariff (New York: Prentice-Hall, 1935), 288.
39. Skocpol, Protecting Soldiers and Mothers, 58.
40. Hugh Heclo, Modern Social Politics in Britain and Sweden: From Relief to Income Maintenance (New Haven: Yale University Press, 1975).
41. Department of Annexation, Annexation Key to Prosperous Community (Milwaukee: City of Milwaukee, 1947).
42. Charles D. Goff, "The Politics of Governmental Integration in Metropolitan Milwaukee" (Ph.D. dissertation, Department of Political Science, Northwestern University; 1952).
43. Department of Annexation, Annexation Key to Prosperous Community.
44. Arthur M. Werba and John L. Grunwald, Making Milwaukee Mightier: A Record of Annexation and Consolidation and a Study of Unification of Government Here and Elsewhere (Milwaukee: Board of Public Land Commissioners, 1929).
45. Arnold Fleischmann, "The Politics of Annexation and Urban Development: A Clash of Two Paradigms" (Ph.D. dissertation, Department of Government, University of Texas, 1984).
46. Sally M. Miller, "Milwaukee: Of Ethnicity and Labor," in Socialism and the Cities, ed. Bruce M. Stave (London: Kennikat Press, 1975): 41-71.
47. Miller, "Milwaukee."
48. Douglas E. Booth, "Municipal Socialism and City Government Reform: The Milwaukee Experience, 1910-1940," Journal of Urban History 12 (1985): 51-74.
49. Department of Annexation, Annexation Key to Prosperous Community. Garden Homes ceased to be a public housing development in 1925 when residents voted to privatize the development.
50. George C. Saffron, Annexation Practices in Milwaukee: An Administrative Analysis (Milwaukee: City of Milwaukee, 1952).
51. Goff, "The Politics of Governmental Integration."
52. Division staff were responsible for verifying the title and ownership of all parcels of land in areas where petitions were being circulated, and otherwise confirming that petitions were errorless. See Goff, "The Politics of Governmental Integration."
53. Goff, "The Politics of Governmental Integration"; Fleischmann, "The Politics of Annexation."
54. Fleischmann, "The Politics of Annexation."
55. Department of Annexation, Annexation Key to Prosperous Community.
56. Goff, "The Politics of Governmental Integration."
57. "Housing Need Still Pressing, Figures Hint," Milwaukee Journal, 18 January 1949, 1, 6.
58. Fleischmann, "Hie Politics of Annexation."
59. Eric Fure-Slocum, "The Challenge of the Working-Class City: Recasting Growth Politics and Liberalism in Milwaukee, 1937-1952" (Ph.D. dissertation, Department of History University of Iowa, 2001).
60. Frank P. Zeidler, A Liberal in City Government: My Experiences as Mayor of Milwaukee (Milwaukee: Milwaukee Publisher, 2005), 11.
61. Zeidler, A Liberal in City Government, 22.
62. John Gurda, The Making of Milwaukee (Milwaukee: Milwaukee County Historical Society, 1999), 361.
63. Mark I. Gelfand, A Nation of Cities: The Federal Governmentand Urban America, 1933-1965 (New York: Oxford University Press, 1975);
64. Richard M. Flanagan, "The Housing Act of 1954: The Sea Change in National Urban Policy," Urban Affairs Review 33 (1997): 265-86.
65. Gelfand, A Nation of Cities; Flanagan, "The Housing Act of 1954."
66. Zeidler, A Liberal in City Government, 115.
67. Lewis Mumford, The Culture of Cities (New York: Harcourt, Brace and Co., 1938);
68. Catherine Bauer Wurster, Modern Housing (Boston: Houghton Mifflin, 1934);
69. For Charles B. Whitnall's approach to planning, see Gurda, The Making of Milwaukee, 268-73.
70. Gelfand, A Nation of Cities.
71. Frank P. Zeidler, Letter to Paul V. Betters re: development of satellite communities. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 177, Folder 1. 11 February 1949;
72. Frank P. Zeidler, Letter to Elmer Krieger re: proposed developments in annexation. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 124, Folder 5. 2 August 1951.
73. Frank P. Zeidler, Letter to Louis Ruppel. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 175, Folder 3. 20 July 1949.
74. Elmer Krieger, Memorandum to the Board of Public Land Commissioners re: coordination of plans for the city's expansion and the civil defense program. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 190, Folder 5. 10 March 1951.
75. Joseph J. Hirsch, Letter to Mayor Frank Zeidler re: supervision of Annexation Department. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 124, Folder 2. 9 December 1948.
76. Arthur M. Werba, Letter to Mayor Frank Zeidler re: acquisition of sites for public housing. Frank Zeidler Papers archival collection, Milwaukee Public Library. Box 175, Folder 1. 15 June 1948.
77. Richard Perrin, Letter to Mayor Frank Zeidler re: acquisition of land for public housing. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 175, Folder 3. 23 August 1949.
78. Richard Perrin, Letter to Mayor Frank Zeidler re: acquisition of land for public housing.
79. Frank P. Zeidler, Letter to Walter Walt re: purchase of Benjamin Hackbarth farm. Frank Zeidler Papers archival collection, Milwaukee Public Library. Box 175, Folder 3. 23 August 1949.
80. Zeidler, A Liberal in City Government.
81. Fure-Slocum, "The Challenge of the Working-Class City."
82. Milwaukee Housing Authority, Public Housing in Milwaukee, 3rd ed. (Milwaukee: City of Milwaukee, 1958).
83. Milwaukee's linkage of public housing and annexation drew the attention of housing advocate Catherine Bauer, who called the city's program the "best in the nation" during a visit to Milwaukee in 1949. See "City Clearance 'Nation's Best," Milwaukee Journal, 12 December 1949, L1.
84. "Housing Need Still Pressing."
85. Goff, "The Politics of Governmental Integration," 101; Fleischmann, "The Politics of Annexation," 149.
86. Goff, "The Politics of Governmental Integration," 98;
87. Fleischmann, "The Politics of Annexation," 126.
88. Zeidler, A Liberal in City Government. Zeidler also pressured builders' and realtors' organizations to end their opposition to public housing, implying in a 1950 letter to the Milwaukee Builders Association that the city might be forced to curtail its annexation efforts if the organization continued its anti-housing campaign.
89. See Frank P. Zeidler, Letter to Milwaukee Builders Association re: Housing Act of 1949. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 179, Folder 1, 10 February 1950.
90. Goff, "The Politics of Governmental Integration," 135.
91. See also Department of Annexation, Annexation Key to Prosperous Community;
92. Department of Annexation, Beware of Plot on Annexation with High Pressure Salesmanship (Milwaukee: City of Milwaukee, undated).
93. Fleischmann, "The Politics of Annexation."
94. Griffenhagen & Associates, Report No. 17: Department of Abstracting and Annexation (Milwaukee: Griffenhagen & Associates, 1949).
95. Saffron, "Annexation Practices in Milwaukee."
96. Elmer Krieger, Memorandum to the Board of Public Land Commissioners re: coordination of plans for the city's expansion and the civil defense program. Frank Zeidler Papers archival collection, Milwaukee Public Library. Box 190, Folder 5. 10 March 1951.
97. Zeidler, A Liberal in City Government.
98. Zeidler, A Liberal in City Government;
99. Werba and Grunwald, Making Milwaukee Mightier, 34.
100. Goff, "The Politics of Governmental Integration," 96.
101. Zeidler, A Liberal in City Government.
102. Arthur M. Werba, Letter to Mayor Frank Zeidler re: Annexation Department. Frank Zeidler Papers archival collection, Milwaukee Public Library. Box 124, Folder 2. 1 December 1948.
103. Arthur M. Werba, Letter to Mayor Frank Zeidler re: annexations. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 124, Folder 2. 16 December 1948;
104. Arthur M. Werba, Letter to Mayor Frank Zeidler re: Kalt Company Frank Zeidler Papers archival collection, Milwaukee Public Library Box 124, Folder 3. 3 May 1949.
105. "Annexation, Housing OK'd," Milwaukee Sentinel, 27 August 1947, A4.
106. Kate Foss-Mollan, Hard Water: Politics and Water Supply in Milwaukee, 1870-1995 (West Lafayette, IN: Purdue University Press, 2001).
107. Arthur M. Werba, Letter to Mayor Frank Zeidler re: annexations. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 124, Folder 2. 17 June 1948.
108. Zeidler, A Liberal in City Government.
109. E.E Tanghe, Letter to Board of School Directors of the City of Milwaukee re: building of school in the Town of Lake. Frank Zeidler Papers archival collection, Milwaukee Public Library Box 116, Folder 6. 27 August 1952.
110. Fleischmann, The Territorial Expansion of Milwaukee.
111. Zeidler, A Liberal in City Government.
112. Goff, "The Politics of Governmental Integration"; Zeidler, A Liberal in City Government
113. Fure-Slocum, "The Challenge of the Working-Class City."
114. Richard M. Bernard, "Milwaukee: The Death and Life of a Midwestern Metropolis," in Snowbelt Cities: Metropolitan Politics in the Northeast and Midwest since World War 11, ed. Richard M. Bernard (Bloomington: Indiana University Press, 1990): 170-88;
115. J.J. Roache, Letter to Mayor Frank Zeidler re: slum clearance. Frank Zeidler Papers archival collection, Milwaukee Public Library. Box 119, Folder 3. 24 November 1952.
116. Quoted in Gurda, The Making of Milwaukee.
117. "Fight Started on Annexation, McParland Offers Bills," Milwaukee Journal, 14 January 1949, A16.
118. "McParland Offers Bills to Stymie Annexations," Milwaukee Sentinel, 27 January 1949,12;
119. Zeidler, A Liberal in City Government, 95.
120. "Bill is Passed on Annexation," Milwaukee Journal, 13 June 1951, L11.
121. "Urges Master Plan as Need for Annexing," Milwaukee Journal, 24 September 1951, Ml, M22;
122. Goff, "The Politics of Governmental Integration."
123. Goff, "The Politics of Governmental Integration."
124. Fleischmann, The Politics of Annexation; "Outline Master Plan for Downtown Area," Milwaukee Journal, 19 October 1947.
125. Henry J. Schmandt, The Milwaukee Metropolitan Study Commission (Bloomington: Indiana University Press, 1965), 73.
126. Schmandt, The Milwaukee Metropolitan Study Commission, 80.
127. Richard W. Cutler, Greater Milwaukee's Growing Pains, 1950-2000: An Insider's View (Brookfield, Wl: Burton & Mayer, 2001).
128. Schmandt, The Milwaukee Metropolitan Study Commission.
129. "Study Group Will Limit Probe to Water, Sewers," Milwaukee Journal, 21 September 1956, A12.
130. "City Water for Metropolitan Area is Recommended by Study Group," Milwaukee Journal, 16 December 1956, Al, A14.
131. "City Water for Metropolitan Area."
132. David D. Gladfelter, "Water for Wauwatosa," in Cases in State and Local Government, ed. Robert T. Frost (Englewood Cliffs, NJ: Prentice-Hall, 1961): 280-91.