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1、CHAPTER5TheOrganizationinActionITISTIMEtolayouttheactualworkofTVAinthevalley.Thethemesofgovernance—internalautonomyandcollegiality—wereconsistentwithbeliefinthepartnershipofTVAwithpublicagenciesandprivategroupsinwhichtheautonomyofallpartieswascombinedwithcollaboration.Webeginwithregionalplanning
2、becausethatwasthemostholisticen-deavorwithinTVA,anditsweaknessesillustratethepracticalconse-quencesofthevictoryofLilienthalandH.A.MorganoverA.E.Morgan.REGIONALPLANNINGSections22and23oftheTVAActauthorizedthepresidenttoinitiateplansandrecommendtheirimplementationtoCongress.FDRdelegatedthatauthorit
3、ytotheTVAboardbutreservedhisauthoritytoapproveplansandstudiesbeforetheywerebegun.Theinitialauthorsofsection22wereFrederickGutheim,aland-useplannerandstudentattheBrook-ingsInstitution,andJohnNolen,Jr.,acityplannerwhohadworkedwithEarleDraper,TVA’sfirstheadofplanning,inlayingoutKingsport,Ten-nessee,
4、asamodelmanufacturingtownin1915.1GutheimexplainedtoHermanFinerin1937howheandNolen,bothbelieversinregionalplan-ning,hadtakentheirdraftofwhatwastobesection22toFredericDe-lano,FDR’suncleandlaterheadoftheNationalResourcesCommittee,inhopesthatFDRwouldseeit.Therewasnoword,sotheytooktheirideatoSenatorN
5、orris,urgingthattherivervalleybeconsideredinitsdevelopmentasawholequiteasidefromthequestionofelectricpower.Norrisacceptedtheidea,anditbecamepartofthestatute.2GutheimandNolenknewthatthefederalgovernmenthadnoauthor-itytoplanforregions,buttheyhopedthatTVAwouldleadstatesandcommunitiesindevelopingreg
6、ionalcompactsinwhichTVAwouldre-ceivetheauthoritytoplanfortheregion,butwithcontinuousprofes-sionalinterchangesbetweenTVAplannersandtheirstateandlocalcoun-terparts.Itisnotclearfromtherecordhowsection23wasintendedtoworkorwhoaddedit.Butclearly,planswouldhavetobeimplementedbylaw,althoughthewholething
7、wasabitfuzzy.LouisBrownlowtoldFinerthatNorrisgavetheGutheim-NolenideatoBenjaminCohen,apresidentialaide,fordraftingandthatthatwashowthelanguagegotintothelaw.3A.E.Morganclaimedtobethepar-86Chapter5entofsections22and23,andhisT
