Critically, the BRAB report strongly suggested that the program be an experimental one, to determine whether the above hypotheses were correct, rather than a demonstration program that assumed they were:

The program should be viewed throughout the planning, implementation, and subsequent evaluation phases as objective experimentation; the undertaking should not be allowed to be characterized as demonstrations of foregone conclusions nor to foreclose the evolution of other financial, organizational, or technological developments in the housing industry.

But even before BRAB’s report was complete, changes in the administration would shift how Section 108 was implemented. (This pitfall of ambitious government programs has been described as the “Law of Inescapable Discontinuity” — the fact that government programs are unlikely to be conceived and implemented by the same people.) Richard Nixon took office in January 1969, and he appointed George Romney, Governor of Michigan and the former CEO of American Motors, as Secretary of HUD.