Public housing was originally intended by Congress as shelter for the working poor-those with income to pay rent. The assumption was that the revenue from rents would pay for operating costs and maintenance expenses, with a prudent reserve for repairs, modernization, and replacement. 'There are some people we cannot possibly reach," explained the late Robert Wagner, who was the distinguished Senate sponsor of the Housing Act. "I mean those who have no means to pay the rent. Obviously, this bill cannot provide housing for those who cannot pay the rent minus the subsidy allowed."