Learning about city government in North Carolina
Esser remembers some of his assignments at the Institute of Government. Esser became responsible for city government issues, including city-county consolidation and taxation. His involvement in government issues led him into associations with others in similar fields, and momentum for community development programs seemed to grow in the late 1950s and early 1960s. This passage contains a lot of names and scattered recollections, but also a detailed picture of Esser's early career and how he started to apply his ideas about governance in North Carolina.
Citing this Excerpt
Oral History Interview with George Esser, June-August 1990. Interview L-0035. Southern Oral History Program Collection (#4007) in the Southern Oral History Program Collection, Southern Historical Collection, Wilson Library, University of North Carolina at Chapel Hill.
Full Text of the Excerpt
- FRANCES WEAVER:
-
George, we haven't really touched on what assignments you did
at the Institute and how that might have carried over into the fund.
- GEORGE ESSER:
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Well, let's see.
- FRANCES WEAVER:
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Well, assignments first and was there a carry-over to the fund?
- GEORGE ESSER:
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When I first came to the Institute, Mr. Coach had never…. I
mean, every staff member who was there had dealt with a function of
government. I mean, Henry Lewis dealt with tax assessment and tax
collection. And when Phil came, he took on planning and when Ale came,
he took on local government finance. At the time that Ale and I came,
Mr. Coats had agreed for the Institute to make a study for Charlotte and
Mecklinburg County on the consequences of consolidation.
- FRANCES WEAVER:
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Oh, really? That early? I didn't know that.
- GEORGE ESSER:
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Oh, yes. And it was a much better study from the point of view of the
functional elements of city and county government than the legal and
other aspects of bringing it together. So he asked me to do a study of
city-county consolidation throughout the country. Well, I found a book
by a man that I later—I mean there was a lot in the
library—but there was a fairly recent book by a man I later
got to know pretty well named victor Jones from california that dealt
with—historically—with city-county consolidation
from the point of view of political science. And I had a lot of
arguments with Mr. Coats about what we said about…. I said,
"We've got to end up with a legal charter."
But I said, "The history is not found alone in law or statute
or ordinance." And well, he didn't want to go. He
wanted everything to be in terms of what the law was and not what the actual background and the politics of it and so
forth. Well, I was involved—except for the legislative
session of 1949—I was involved in that study for a year and a
half and then I later picked it up again in the late fifties when we did
the thing for Durham. But from that, I was sort of assigned a general
responsibility for municipal government. And so I dealt with a city as
a—city government—I dealt with all of city
government, but if it was planning or tax collection or so forth, I
would consult or it would be done by Ale or Phil or Henry or Don. But
that's how I happened to develop the first school for newly
elected mayors and councilmen; the first management course for managers.
Well, I handled some little functional matters like privilege license
taxation by cities and other things like that. I was the only staff
member and later Alec did this for the counties. But I was the only
staff member who looked at the total of city government. And the role
that city government played in an urban community. Over the years, I
found that it was a lot harder to get my hands around that kind of
assignment than planning or budgeting as Alec had or tax assessment like
Henry had or purchasing like Jake had. On the other hand, it gave me a
lot more insight into what was happening in the country. And I was the
only staff member who got interested in what nationally, was being done.
I went to a national conference on metropolitan
government in East Lansing, Michigan. And I wouldn't have
gotten an invitation if I hadn't written a man who later
became a very good friend of mine; Bill Cassella. And that was the
meeting at which I met Paul [unclear] who
later joined the Ford Foundation.
- FRANCES WEAVER:
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I was going to ask you, did this lead to your association with people
like [unclear] and the foundations
generally?
- GEORGE ESSER:
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That's right. I would never have known then if I had not been
looking at the total community. If I'd been looking at a
function, I never would have gotten involved. So, I got to know a lot of
people, not only on the campus but increasingly, throughout the country.
And I got to know Paul and the people at Ford Foundation
when…. well, let's see. Back in 1955, the
Institute for Research in Social Science established a committee on
urban growth and there were, you know, quite a number of people active
in it. But I was the only person from the Institute and I guess it was
because I was already teaching in municipal administration in the
political science department, that I mentioned that I heard about this.
And I said something to Frank Leyland or somebody like that and they
said, "well, why don't you come to this
meeting?" And so I started going to IRSS meetings and I got to
know Bob Bagger. Do you remember Bob Bagger?
- FRANCES WEAVER:
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Oh, I remember Bob Bagger. Yes, indeed.
- GEORGE ESSER:
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Bob Bagger was the first person I ever met who would intentionally create
a problem so that he could observe what the consequences of the way
people responded to the problem. I liked Bob, but Andy
Scott…
- FRANCES WEAVER:
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Jim Prothrow, was he active?
- GEORGE ESSER:
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Jim Prothrow. And I met all of those people. And the sociologists and I
got to know Gordon very well.
- FRANCES WEAVER:
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And Rupert Vance, was he retired?
- GEORGE ESSER:
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I knew Rupert pretty well. I've known Reba better than I knew
Rupert. But I admired Rupert to no end. And Gordon and I struck up quite
a friendship but it took Gordon a while and me a while to understand
that I could not make a commitment for the Institute; that I could open
the door, but I couldn't make the commitment.
- FRANCES WEAVER:
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You weren't Mr. Coats representative.
- GEORGE ESSER:
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That's right. But that's how Paul, I think,
initially proposed that first urban studies grant to the University that
a certain amount be reserved for the Institute of Government to carry
the results of the research into the state. Well, it was interesting to
me—that was '57—and Paul Novasocker is
a very, very imaginative person and he carried the
Foundation's interest in urban problems through several
stages. I mean, first there was commissioning direct research. Secondly,
there was supporting local institutions devoted to research. And he asked me to…. In 1959, I took some
vacation to do some consulting for Paul in Kansas City and Dayton and
Miami. And I met some interesting people there. Then the Ford Foundation
decided that well that wouldn't work. And then they decided
that they were interested in an urban extension function for
universities like agricultural extension. Well, that didn't
work. Then they got interested in education problem in the cities and
finally, the so-called gray area programs.
- FRANCES WEAVER:
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That came out of Ford? Out of Paul Novasocker's fertile
mind?
- GEORGE ESSER:
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Out of George Novasocker's fertile mind.
- FRANCES WEAVER:
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Was he vice president then?
- GEORGE ESSER:
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No. He was…
- FRANCES WEAVER:
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A program officer?
- GEORGE ESSER:
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He was a program officer.
- FRANCES WEAVER:
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Henry Heild was president?
- GEORGE ESSER:
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Well, anyhow, I kept up with these changes in emphasis by, you know,
seeing things in newsletters or by seeing Paul at…. I
remember meeting Paul at a couple of national conventions. And by that
time, we'd gotten to know each other pretty well. And so,
knowing what the current interest, though I was not able to follow
through, but I did know, in the fall of 1962, John Healy had gone to
work for Terry Sanford and they had gone to New York and Terry had made the famous statement, "I need your
ideas more than your money," and so a rather
large—seven or eight staff people—were coming to
North Carolina in mid-January, 1963 to look at the state and to begin to
work out a program to deal with the problems of North Carolina. So John
Healy, with help from George Stevenson, was preparing the agenda for the
week. And John and I knew each other, but very, very…. I
mean, we knew each other [unclear] , but
somehow, John called John Sanders and said that he wanted
to…
- FRANCES WEAVER:
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John was director of the Institute? John Sanders?
- GEORGE ESSER:
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Yeah. And said he wanted to come over and get some ideas about the
agenda. And I forget how I was identified. I must have had some prior
conversation with John Sanders and I must have said to
John—I'll have to go back and check
this—but somehow I must have said to him that a focus during
the week on traditional urban functions like city planning was not what
Paul Novasocker was interested in.
- FRANCES WEAVER:
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That's in your 1970 tape. You point that out to either John
Sanders or John Healy or both.
- GEORGE ESSER:
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But then at that meeting which I'll never forget, came
on…. We met on Christmas Eve afternoon, 1962, I made that
point to John directly. John Healy and John Sanders. There were three of
us, but why it was only me in there, it must have been I had said
something to John Sanders that led him to it. So
as a result of that, John Healy asked me to help during the visit and
then later the Governor asked John Sanders to sort of informally approve
my helping on the whole process during the spring. Okay. My choice of
looking at the government of urban communities rather than a function,
led me to look at, to be concerned with…. I'd
become interested in metropolitan government because of my first
assignment from the Mecklinburg study. I had helped develop curricula
for both broadly based short course for newly elected mayors and council
and for managers. And I had to think about, you know, what do you say to
people? What do they need to know other than functional things? What do
you say about management? That was a tough one for me to understand, but
it was tougher still for Albert and some members…. Henry
Lewis to this day, does not like the concept of thinking about
management.
- FRANCES WEAVER:
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Yes. I can see that. You just do it. [Laughter]
- GEORGE ESSER:
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And you know, maybe that's why the Institute staff did not
regard Henry as a very good manager because he…. Well,
anyhow, so looking at the governance of urban communities and then
seeing changes come in the fifties and being exposed to what was
happening in other states and going to national meetings and getting to
know people like Paul Novasocker and Bill Cassella who was with the
National Municipal League and people like that. Yes, I did have an….and then seeing that the suburbs
were draining off the people more money and leaving the slums and
depressed areas of the cities, so that gradually, I got a much different
perception of the problem of urban governance than most people at the
Institute and the reason was that I wasn't looking alone at
North Carolina cities. Not that you didn't have problems in
North Carolina cities, but our cities are mighty small compared
to…. Now, we're growing. If we had had then the
type of agglomeration that the Research Triangle represents today or the
Triad, it might have been different. But I had to recognize that it
would be hard to make of North Carolina, even though there were
things…. Well, I wrote the annexation law that still is
effective in North Carolina. It's looked on as one of the
best in the country.
- FRANCES WEAVER:
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Really? When you are annexing property into an urban community?
- GEORGE ESSER:
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Yeah, and I'll never forget…. I mean, Bob
Stape…. I was working one night at the Institute and Bob
Stape was there and I said, "Bob, let's figure out a
standard." That standard is still in the law. Something like a
population density of something like two people per acre; something like
that. He just pulled it out of the air. You know, Bob was a city planner
and well, that's the reason that in
North Carolina you have fewer incorporated suburban municipalities.
- FRANCES WEAVER:
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Oh, I see.
- GEORGE ESSER:
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Because the cities in North Carolina, with some exceptions…. I
mean, you have a few around and you have some cities like Charlotte that
have grown out to be [unclear] whatever.
But you don't have new incorporation in the…. As a
city grows, it generally takes it in.
- FRANCES WEAVER:
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Takes it in. Yeah, so you avoid the Saint Louis and Birmingham model with
all those incorporated cities with their own schools. Yeah.
- GEORGE ESSER:
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That's right. That's exactly right. So, I guess, in
the long run, the fact of looking at the total urban community and then
seeing the diversity in…. The demographic diversity, the
problems that were involved in race and income and employment, so I
guess, you know, I wasn't trained, necessarily, to do the
North Carolina Fund, but I had developed the sensitivity to the issues
that enabled me to do it where it would have been very difficult for
people with other backgrounds could have done it.