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Community Participation and Empowerment Zone WHERE DO WE GO FROM HERE? COMMUNITY PARTICIPATION AND EMPOWERMENT IN THE EMPOWERMENT ZONE: ATLANTA , 199 4 - 2002 Deborah A. Jackso n A DISSERTATION SUBMITTE D TO THE SCHOO L OF COMMUNITY ECONOMIC DEVELOPMEN T OF SOUTHERN NEW HAMPSHIRE UNIVERSITY IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FO R THE DEGREE OF DOCTOR OF PHILOSOPHY IN COMMUNITY ECONOMIC DEVELOPMEN T I certify that I have read this dissertation an d that, in my opinion, it is full y adequate in scope and quality as a dissertation fo r the degre e of Doctor of Philosophy. Chair Reader Reader Approved by the Doctora l Program, Schoo l of Community Economic Development. Dean/Department Chair Charles M. Hotchkiss, Ph.D. WHERE DO WE GO FROM HERE? COMMUNITY PARTICIPATION AND EMPOWERMENT IN THE EMPOWERMENT ZONE: ATLANTA , 199 4 - 200 2 A DISSERTATION SUBMITTE D TO THE SCHOO L OF COMMUNITY ECONOMIC DEVELOPMEN T OF SOUTHERN NEW HAMPSHIRE UNIVERSITY IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FO R THE DEGREE OF DOCTOR OF PHILOSOPHY IN COMMUNITY ECONOMIC DEVELOPMENT By Deborah A. Jackson Bachelor of Arts Princeton University, 1974 Juris Docto r Rutgers Universit y - Newark , 197 7 Master of Arts Rutgers Universit y - Newark , 197 7 Master of Arts Southern Ne w Hampshire University , 2008 Chair: Charle s M. Hotchkiss School of Community Economic Developmen t April 200 9 Southern Ne w Hampshire University Manchester, Ne w Hampshir e Copyright © 2009 Deborah A. Jackso n All Rights Reserved DEDICATION This research is dedicated to the residents of communities, both here and abroad , who continue to struggle to find way s to improve the quality of life for their families and themselves . May their efforts not continue to be in vain. Ashe . iv ACKNOWLEDGEMENTS First, I give thanks to the Spirit of Creation for providing the insight, strength an d stamina to start and complete this journey. Second , I thank my parents, Georgia and Fred Jackson, whose love, support an d encouragement helpe d to make m e the person I am. I thank my sister, Cynthia D. Jackson, for being a sounding board. I thank my Dissertation Committee of Charles M. Hotchkiss , Chair, Gerald Karush and Catherine Rielly who helped to guide me through this proces s with their insight and thoughtful suggestions . I thank my advisor, Yoel Camayd- Freixas, who made it possible to be a part of the doctora l program. I thank th e staff of the various city and state agencies, a s well as the Auburn Avenue Research Library - Archive s Collection, for their assistance and pointing me in the right direction. A special thanks to M. Salee m and J. T. Brownlee for their transcription work. I give very special thanks to my classmate Sanjee v Sharm a who helped with various technical aspects of this project; an d to my dear friend s A. Laura Durojaiye, Henrietta E. Turnquest, an d Gene R. Stephenson I I who patiently reviewed the various iterations o f this document an d provided feedback . No acknowledgement woul d be complete without mention of those who provided the foundation t o reach this point. I thank m y mentor Professo r Jan Carew who awakened my imagination as an undergraduate to learn about the tremendous shoulders o n which I stand; an d who has continued to encourage m e to go th e extra mile. Specia l thanks to Dr. Will Coleman who continued to lift me u p mentally and spiritually. Thank s to my church family a t First Afrikan, whos e prayers sustaine d me ; and whose teachings inspire d me to pursue this path. And of course, many thanks to my extended family , friends, and colleagues whose love and support continu e to make a difference . I am eternally thankful to the resident s o f the Atlanta communities of Mechanicsville, Peoplestown, Pittsburgh, Summerhill and the other persons who continue to inspire me with their dedication and commitment to improving the quality of life for those in the community that are too often lef t out, overlooked or misused. v TABLE OF CONTENTS ABSTRACT xi i CHAPTER 1. INTRODUCTION........ 1 Overview and Problem Statement 1 Research Question, Method and Significance 4 Summary of Findings 7 Future Developments 8 Research Study Format 8 CHAPTER 2. TH E SEARCH FOR MEANING: A LITERATURE REVIEW O N COMMUNITY PARTICIPATION AN D EMPOWERMENT 1 0 Participation Model: Community Action Program 1 2 Participation Model: Model Cities Program 1 8 Theories and Typologies of Participation 2 6 International Perspectives on Participation and Empowerment 3 5 Concepts of Empowerment 3 8 Summary and Conclusions 4 1 CHAPTER 3. THEORETICA L FRAMEWORK: TOWAR D A HOLISTIC APPROACH TO COMMUNITY PARTICIPATION AN D EMPOWERMENT 4 2 Assessments of the Empowerment Zone Program 4 2 Research Focus .......... 4 6 Definition of Concepts 4 8 Research Questions 5 8 Statement of Research Goals 5 9 vi CHAPTER 4 . SETTIN G TH E STAGE : AN HISTORICAL OVERVIE W OF COMPREHENSIVE PLANNIN G INITIATIVE S .....6 1 The Continuing Significance of Power, Race, and Poverty 6 6 CHAPTER 5 . A CASE OF DÉJÁ VU: A BRIEF HISTOR Y AND DEMOGRAPHI C PROFILE O F THE ATLANTA EMPOWERMENT ZON E COMMUNITIE S 7 6 Overview of the Neighborhoods ...............7 6 Model Cities and Community Participation 7 9 State of the Neighborhoods - Twenty Years after Model Cities.... ...84 The Empowerment Zone and Enterprise Communities Program 9 3 The Atlanta EZ Strategic Planning Process 9 5 CHAPTER 6 . METHODOLOG Y 10 6 Research Design ...... 10 9 Research Procedures 11 0 Case Selection .... 11 2 Data Collection Methods 11 3 Institutional Review Board (IRB) Review... .. 11 7 Issues of Reliability and Validity 11 7 Analysis .... 11 8 Limitations 12 2 CHAPTER 7 . RESEARC H ANALYSIS AND FINDINGS ...12 3 The AEZ Strategic Planning Process and Community Involvement......... 12 4 Background of Key Respondents 12 6 Levels of Participation .....12 7 Exercise of Power 13 1 Access to Resources 13 6 vii Identification of Community Benefits 13 8 Challenges oftheAEZC 14 2 Challenges of the CEAB 14 3 Summary and Conclusions 14 6 CHAPTER 8 . CONCLUSION S AND POLICY RECOMMENDATIONS 14 9 Policy Recommendations 16 0 EPILOGUE 16 4 REFERENCES AND RESOURCES 16 5 APPENDICES 18 5 Appendix A: AE Z Priorities and Strategies 18 6 Appendix B: Intervie w Guide 19 8 viii LIST OF TABLES Table Page 1. Meanin g of "Community Action" 1 4 2. Spectru m o f Public Participation 3 1 3. A Typology of Participation 3 3 4. Compariso n of Participation Typologies 3 4 5. Fiv e Empowerment Type s 5 3 6. Povert y Rates in Atlanta and EZ Study Neighborhoods, 198 0 - 2000 9 1 7. Unemploymen t Rate s in Atlanta and EZ Study Neighborhoods, 198 0 - 2000 9 2 8. Atlant a Empowerment Zon e (AEZ) Strategic Pla n Priorities 10 0 9. Operationalizatio n o f Research Question s 12 1 ix LIST OF FIGURES Figure Page 1. Eigh t Rungs of Citizen Participation 3 0 2. A Ladder of Empowerment 5 1 3. Conceptua l Framework for Community Participation a s Empowerment 5 7 4. Propose d Model Cities Program Organization, Atlanta 8 1 5. Populatio n Trends in Atlanta and EZ Study Neighborhoods, 198 0 - 2000 8 6 6. Percentag e of Black Population in Atlanta and EZ Study Neighborhoods , 1980 - 200 0 .. 8 7 7. Percentag e of White Population in Atlanta and EZ Study Neighborhoods , 1980-2000 8 8 8. Percentag e of Other Population in Atlanta and EZ Study Neighborhoods , 1980 - 200 0 8 9 9. Media n Household Income in Atlanta and EZ Study Neighborhoods , 1980-2000 ....90 10. Empowerment Zon e Strategic Plan Organization Chart 9 7 11. Empowermen t Zon e Corporation Organization Chart 9 8 12. Community Economic Cycle 10 3 PROLOGUE What happens to a dream deferred ? Does it dry up like a raisin in the sun? Or fester like a sore — And then run? Does it stink like rotten meat ? Or crust and sugar over — like a syrupy sweet? Maybe it just sags like a heavy load. Or does it explode? Langston Hughes (1951) xi ABSTRACT WHERE DO WE GO FROM HERE? COMMUNITY PARTICIPATION AN D EMPOWERMENT IN THE EMPOWERMENT ZONE : ATLANTA , 199 4 - 2002 April 200 9 Deborah A. Jackson, Ph.D. Southern New Hampshire University, 200 9 Dissertation Chair: Charle s M. Hotchkiss, Ph.D. The concepts of community participation and community empowerment hav e been the focus of several federal programs, such as the Empowerment Zone (EZ), purportedly designed to alleviate poverty in urban areas through th e participation of residents. Thi s research examine s what effect those concept s had on conditions within targeted communitie s from the perspective of community representatives whos e voice is not often heard. Th e study analyze s whether the EZ program strengthened th e community's ability to take control of and/or influence decisions affecting its quality of life . The research propose s a conceptual framework of community participation as empowerment an d demonstrates the need for a more holistic approach t o comprehensive planning initiatives. Th e framework identifies factors that ar e needed t o make participation meaningful or effective - exercis e of power; acces s to resources; an d identification of results o r benefits fo r the community. Thi s dissertation uses a case study research desig n and qualitative data collectio n xii methods to examine four neighborhoods o f the Atlanta Empowerment Zone (AEZ) that were also part of the Model Cities program in the 1960's .
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